Local Governments Digests

Mabelle O.
Nebres | Local Governments Case Digests

Alvarez v. Guingona Facts: HB 8817 entitle! "#n #ct Converting t$e M%nici&alit' o( )antiago into an *n!e&en!ent Com&onent Cit' to be +no,n as t$e Cit' o( )antiago " ,as (ile! in t$e Ho- s%bse.%entl' &asse! b' t$e Ho- an! transmitte! to t$e )enate. # co%nter&art o( HB 8817 )B 1/01 ,as (ile! in t$e )enate an! ,as &asse! as ,ell. 2$e enrolle! bill ,as s%bmitte! to an! signe! b' t$e C$ie( 34ec%tive as -# 77/5. 6$en a &lebiscite on t$e #ct ,as $el! on 7%l' 11 1880 a great ma9orit' o( t$e registere! voters o( )antiago vote! in (avor o( t$e conversion o( )antiago into a cit'. *ss%e: Constit%tionalit' o( -# 77/5. )C: :3) &etition !enie! &res%m&tion o( constit%tionalit' no clear an! %ne.%ivocal breac$ o( t$e Consti. 1. 6ON *nternal -even%e #llotments ;*-#s< m%st be incl%!e! in !etermining t$e average ann%al income (or &%r&oses o( conversion.:3) For a m%nici&alit' to be converte! into an in!e&en!ent com&onent cit' its average ann%al income (or t$e last t,o consec%tive 'ears ;at t$at time base! on 1881 constant &rices< m%st be at least /5M. =etitioners conten! t$at t$e *-#s m%st be !e!%cte! (rom t$e m%nici&alit'>s income beca%se t$e' are not income b%t trans(ers an!?or b%!getar' ai! (rom t$e NG an! t$at t$e' (l%ct%ate !e&en!ing on !i((erent (actors. 2$e co%rt in its !isc%ssion o( ,$at an LG@ is sai! t$at: a. it is a &olitical s%b!ivision o( t$e )tate ,$ic$ is constit%te! b' la, an! &ossesse! o( s%bstantial control over its o,n a((airs. b. *t is an intra sovereign s%b!ivision o( one sovereign nation b%t not inten!e! $o,ever to be an im&eri%m in im&erio c. *t is a%tonomo%s in t$e sense t$at it is given more &o,ers a%t$orit' res&onsibilities an! reso%rces. )ince t$e LG@ is given broa!ene! &o,ers an! increase! res&onsibilities it no, o&erates on a m%c$ ,i!er scale. More e4tensive o&erations in t%rn entail more e4&enses. 2$e vesting o( !%t' res&onsibilit' an! acco%ntabilit' in ever' LG@ is accom&anie! ,it$ a &rovision (or reasonabl' a!e.%ate reso%rces to !isc$arge its &o,ers an! e((ectivel' carr' o%t its (%nctions. #vailment o( s%c$ reso%rces is e((ect%ate! t$ro%g$ t$e vesting in ever' LG %nit o( ;1< t$e rig$t to create an! broa!en its o,n so%rce o( reven%eA ;/< t$e rig$t to be allocate! a 9%st s$are in national ta4es s%c$ s$are being in t$e (orm o( internal reven%e allotments ;*-#s<A an! ;1< t$e rig$t to be given its e.%itable s$are in t$e &rocee!s o( t$e %tiliBation an! !evelo&ment o( t$e national ,ealt$ i( an' ,it$in its territorial bo%n!aries. 2$e co%rt $el! t$at t$e *-#s ,ere &ro&erl' incl%!e! beca%se t$e' are items o( income an! (orm &art o( t$e gross accretion o( t$e (%n!s o( t$e LG@. 2$e *-#s reg%larl' an! a%tomaticall' accr%e to t$e local treas%r' ,it$o%t nee! o( an' (%rt$er action on t$e &art o( t$e LG %nit. 2$e' t$%s constit%te income ,$ic$ t$e LG can invariabl' rel' %&on as t$e so%rce o( m%c$ nee!e! (%n!s. LGC )ec 0C5 ;c<: "t$e average ann%al income s$all incl%!e t$e income accr%ing to t$e general (%n! e4cl%sive o( s&ecial (%n!s trans(ers an! nonDrec%rring income." DOF Or!er 1CD81: #NN@#L *NCOM3: reven%es an! recei&ts realiBe! b' &rovinces cities an! m%nici&alities (rom reg%lar so%rces o( t$e Local General F%n! incl%!ing t$e internal reven%e allotment an! ot$er s$ares &rovi!e! (or in )ecs /80 /85 an! /81 o( t$e Co!e b%t e4cl%sive o( nonDrec%rring recei&ts s%c$ as ot$er national ai!s grants (inancial assistance loan &rocee!s sales o( (i4e! assets an! similar ot$ers. 1. 6ON consi!ering t$at t$e )enate &asse! )B 1/01 its o,n version o( HB 8817 -# 77/5 can be sai! to $ave originate! in t$e Ho-. :3) Bills o( local a&&lication are re.%ire! to originate e4cl%sivel' in t$e Ho-. =etitioners conten! t$at since a bill o( t$e same im&ort ,as &asse! in t$e )enate it cannot be sai! to $ave originate! in t$e Ho-. )%c$ is %ntenable beca%se it cannot be !enie! t$at t$e HB ,as (ile! (irst ;18 #&r 1881<. 2$e )B ,as (ile! 18 Ma'. 2$e HB ,as a&&rove! on t$ir! rea!ing 17 Dec an! ,as transmitte! to t$e )enate /8 7an 1880. 2$e (iling in t$e )enate o( a s%bstit%te bill in antici&ation o( its recei&t o( t$e bill (rom t$e Ho%se !oes not
Mabelle O. Nebres | Local Governments Case Digests

contravene t$e constit%tional re.%irement t$at a bill o( local a&&lication s$o%l! originate in t$e Ho%se o( -e&resentatives (or as long as t$e )enate !oes not act t$ere%&on %ntil it receives t$e Ho%se bill. 2$e (iling in t$e )enate o( a s%bstit%te bill in antici&ation o( its recei&t o( t$e bill (rom t$e Ho- !oes not contravene t$e constit%tional re.%irement t$at a bill o( local a&&lication s$o%l! originate in t$e Ho- (or as long as t$e )enate !oes not act t$ere%&on %ntil it receives t$e Ho%se bill. 2olentino v. )oF: E,$at t$e Constit%tion sim&l' means is t$at t$e initiative (or (iling reven%e tari(( or ta4 bills bills a%t$oriBing an increase o( t$e &%blic !ebt &rivate bills an! bills o( local a&&lication m%st come (rom t$e Ho- on t$e t$eor' t$at electe! as t$e' are (rom t$e !istricts t$e members o( t$e Ho%se can be e4&ecte! to be more sensitive to t$e local nee!s an! &roblems. On t$e ot$er $an! t$e senators ,$o are electe! at large are e4&ecte! to a&&roac$ t$e same &roblems (rom t$e national &ers&ective. Bot$ vie,s are t$ereb' ma!e to bear on t$e enactment o( s%c$ la,s. Nor !oes t$e Constit%tion &ro$ibit t$e (iling in t$e )enate o( a s%bstit%te bill in antici&ation o( its recei&t o( t$e bill (rom t$e Ho%se so long as action b' t$e )enate as a bo!' is ,it$$el! &en!ing recei&t o( t$e Ho%se bill.F Basco v. PAGCOR Facts: =#GCO- ,as create! %n!er =D 18G8 to enable t$e Government to reg%late an! centraliBe all games o( c$ance a%t$oriBe! b' e4isting (ranc$ise or &ermitte! b' la,. 2o attain its ob9ectives ;centraliBe an! integrate t$e rig$t an! a%t$orit' to o&erate an! con!%ct games o( c$ance generate a!!itional reven%e to (%n! in(rastr%ct%re an! socioDcivic &ro9ect e4&an! to%rism minimiBe evils &revalent in con!%ct an! o&eration o( gambling cl%bs< =#GCO- is given territorial 9%ris!iction all over t$e =$ili&&ines. @n!er its C$arterHs re&ealing cla%se all la,s !ecrees e4ec%tive or!ers r%les an! reg%lations inconsistent t$ere,it$ are accor!ingl' re&eale! amen!e! or mo!i(ie!. *ss%es: 1. 6ON =D 18G8 constit%tes a ,aiver o( t$e rig$t o( t$e Cit' o( Manila to im&ose ta4es an! legal (ees. NO 2$e Cit' o( Manila being a mere Municipal corporation $as no inherent right to impose taxes. 2$%s "t$e C$arter or stat%te m%st &lainl' s$o, an intent to con(er t$at &o,er or t$e m%nici&alit' cannot ass%me it." *ts "&o,er to ta4" t$ere(ore m%st al,a's 'iel! to a legislative act ,$ic$ is s%&erior $aving been &asse! %&on b' t$e state itsel( ,$ic$ $as t$e "in$erent &o,er to ta4" 2$e C$arter o( t$e Cit' o( Manila is s%b9ect to control b' Congress. *t s$o%l! be stresse! t$at "m%nici&al cor&orations are mere creat%res o( Congress" ,$ic$ $as t$e &o,er to "create an! abolis$ m%nici&al cor&orations" !%e to its "general legislative &o,ers." Congress t$ere(ore $as t$e &o,er o( control over LGs. #n! i( Congress can grant t$e Cit' o( Manila t$e &o,er to ta4 certain matters it can also &rovi!e (or e4em&tions or even ta+e bac+ t$e &o,er. 2$e Cit' o( ManilaHs &o,er to im&ose license (ees on gambling $as long been revo+e!. #s earl' as 187C t$e &o,er o( LGs to reg%late gambling t$r% t$e grant o( "(ranc$ise licenses or &ermits" ,as ,it$!ra,n b' =D 771 an! ,as veste! e4cl%sivel' on t$e NG. Onl' t$e NG $as t$e &o,er to iss%e "licenses or &ermits" (or t$e o&eration o( gambling. Necessaril' t$e &o,er to !eman! or collect license (ees ,$ic$ is a conse.%ence o( t$e iss%ance o( "licenses or &ermits" is no longer veste! in t$e Cit' o( Manila. LGs $ave no &o,er to ta4 instr%mentalities o( t$e NG. =#GCO- is a government o,ne! or controlle! cor&oration ,it$ an original c$arter =D 18G8. #ll o( its s$ares o( stoc+s are o,ne! b' t$e NG. *n a!!ition to its cor&orate &o,ers ;)ec. 1 2itle ** =D 18G8< it also e4ercises reg%lator' &o,ers. =#GCO- $as a !%al role to o&erate an! to reg%late gambling casinos. 2$e latter role is governmental ,$ic$ &laces it in t$e categor' o( an agenc' or instr%mentalit' o( t$e Government. Being an instr%mentalit' o( t$e Government =#GCO- s$o%l! be an! act%all' is e4em&t (rom local ta4es. Ot$er,ise its o&eration mig$t be b%r!ene! im&e!e! or s%b9ecte! to control b' a mere LG. 2$e states $ave no &o,er b' ta4ation or ot$er,ise to retar! im&e!e b%r!en or in an' manner control t$e o&eration o( constit%tional la,s enacte! b' Congress to

carr' into e4ec%tion t$e &o,ers veste! in t$e (e!eral government.DDI "s%&remac'" o( t$e NG over LGs. Holmes: absence o( &o,er on t$e &art o( t$e )tates to to%c$ in t$at ,a' ;ta4ation< at least t$e instr%mentalities o( t$e @nite! )tates mere creat%res o( t$e )tate can !e(eat National &olicies t$r% e4termination o( ,$at local a%t$orities ma' &erceive to be %n!esirable activities or enter&rise %sing t$e &o,er to ta4 as "a tool (or reg%lation" 6ON t$e Local #%tonom' Cla%se o( t$e Constit%tion ,ill be violate! b' =D 18G8. NO. #rt 4 )ec C Consti: 3ac$ LG %nit s$all $ave t$e &o,er to create its o,n so%rce o( reven%e an! to lev' ta4es (ees an! ot$er c$arges s%b9ect to s%c$ g%i!elines an! limitation as t$e congress ma' &rovi!e consistent ,it$ t$e basic &olic' on local a%tonom'. )%c$ ta4es (ees an! c$arges s$all accr%e e4cl%sivel' to t$e LG. &o,er o( LG to "im&ose ta4es an! (ees" is s%b9ect to "limitations" ,$ic$ Congress ma' &rovi!e b' la,. )ince =D 18G8 remains an "o&erative" la, %ntil "amen!e! re&eale! or revo+e!" ;)ec. 1 #rt. JK*** 1887 Constit%tion< its "e4em&tion cla%se" remains as an e4ce&tion to t$e e4ercise o( t$e &o,er o( LGs to im&ose ta4es an! (ees. *t cannot t$ere(ore be violative b%t rat$er is consistent ,it$ t$e &rinci&le o( local a%tonom'. &rinci&le o( local a%tonom' %n!er t$e 1887 Constit%tion sim&l' means "!ecentraliBation." *t !oes not ma+e LGs sovereign ,it$in t$e state or an "im&eri%m in im&erio." LG: political sub ivision o! a nation or state "hich is constitute b# la" an has substantial control o! local a!!airs. *n a %nitar' s'stem o( government s%c$ as t$e government %n!er t$e =$ili&&ine Constit%tion LGs can onl' be an intra sovereign s%b!ivision o( one sovereign nation it cannot be an im&eri%m in im&erio. LG in s%c$ a s'stem can onl' mean a meas%re o( !ecentraliBation o( t$e (%nction o( government. $ilas v. Cit# o! Manila Facts: Kilas 2rigas an! ag%a!o are cre!itors o( Manila as it e4iste! be(ore t$e cession o( t$e =$ili&&ine *slan!s ;=*< to t$e @) b' t$e treat' o( =aris. #ccor!ing to t$em %n!er its &resent c$arter (rom 1. t$e Government o( t$e =* is t$e same 9%ristic &erson an! liable %&on t$e obligations o( t$e ol! cit'. =* )C: !i((erent entit'. *ss%e: 6ON not,it$stan!ing t$e cession o( t$e =* to t$e @) (ollo,e! b' a reincor&oration o( t$e cit' &resent m%nici&alit' liable (or obligations o( ol! cit'. :3) 2$e cit' as no, incor&orate! $as s%ccee!e! to all o( t$e &ro&ert' rig$ts o( t$e ol! cit' an! to t$e rig$t to en(orce all its ca%ses o( action. 2$ere is i!entit' o( &%r&ose bet,een )& an! #m c$arters an! s%bstantial i!entit' o( m%nici&al &o,ers area an! in$abitants. #rg%ment against liabilit': a'%ntamiento o( Manila ,as a cor&oration entit' create! b' t$e )& government . ,$en t$e sovereignt' o( )& cease! m%nici&alit' cease! as ,ell.DDI analog' to !octrine o( &rinci&al an! agent !eat$ o( &rinci&alL!eat$ o( agent D%al C$aracter o( M%nici&al Cor&orations: 1. Governmental: e4ercises b' !elegation a &art o( t$e sovereignt' o( t$e state /. =rivate?B%siness: mere legal entit' or 9%ristic &erson. )tan!s (or t$e comm%nit' in t$e a!ministration o( local a((airs ,$oll' be'on! t$e s&$ere o( t$e &%blic &%r&oses (or ,$ic$ its governmental &o,ers are con(erre! *n vie, o( t$e !%al c$aracter o( m%nici&al cor&orations t$ere is no &%blic reason (or &res%ming t$eir total !issol%tion as a mere conse.%ence o( militar' occ%&ation or territorial cession. McMinle'>s instr%ction: relin.%is$ment or cessionN cannot in an' res&ect im&air t$e &ro&ert' or rig$ts ,$ic$ b' la, belong to t$e &eace(%l &ossession o( &ro&ert' o( all +in!sN =ro&ert' rig$ts o( m%nici&al cor&orations an! in!ivi!%als ,ere sa(eg%ar!e!. 2$e cession !i! not o&erate as an e4tinction or !issol%tion o( cor&orations. 2$e legal entit' s%rvive! bot$ militar' occ%&ation an! cession. 2$e cor&orate i!entit' an! liabilit' o( t$e cit' ,as not e4ting%is$e!. 2K#: entitle! to &rocee! to 9%!gment. Li asan v. COM%L%C Facts: -# 0785 ;#n #ct Creating t$e M%nici&alit' o( Dianaton in t$e =rovince o( Lanao !el )%r< ,as signe! into la,. Dianaton is com&ose! o( Barrios 2ogaig Ma!al%m Ba'anga Lang+ong

)ara+an MatDbo Diga+a&an Magabo 2abangao 2iong+o Colo!an Mabama+a,an Ma&atagan Bongabong #i&ang Dago,an Ba+i+is B%ngab%ng Losain Matimos an! Magolat%ng. *t ,as later (o%n! o%t t$at Barrios 2ogaig Ma!al%m Ba'anga Lang+ong )ara+an MatD bo Diga+a&an Magabo 2abangao 2iong+o Colo!an Mabama+a,an ,ere not ,it$in Lanao !el )%r b%t ,it$in Cotabato. 2$e COM3L3C a!o&te! a resol%tion recogniBing t$e ne, m%nici&alit' (or &%r&oses o( election. Mean,$ile t$e O((ice o( t$e =resi!ent recommen!e! t$at t$e COM3L3C t$at t$e o&eration o( t$e stat%te be s%s&en!e! %ntil clari(ie! b' correcting legislation. 2$is triggere! &etitioner to (ile action. *ss%e: 6ON -# 0785 is %nconstit%tional. :3) 2$e constit%tion re.%ires t$at no bill m%st be enacte! ,$ic$ s$all embrace more t$an one s%b9ect ,$ic$ s$all be e4&resse! in t$e title o( t$e bill. 6$ile t$e Constit%tion !oes not re.%ire Congress to em&lo' in t$e title o( an enactment lang%age o( s%c$ &recision as to mirror (%ll' in!e4 or catalog%e all t$e contents an! t$e min%te !etails t$erein t$e title s$o%l! serve t$e &%r&ose o( t$e constit%tional !eman! t$at it in(orm t$e legislators t$e &ersons intereste! in t$e s%b9ect o( t$e bill an! t$e &%blic o( t$e nat%re sco&e an! conse.%ences o( t$e &ro&ose! la, an! its o&eration. 2est o( t$e s%((icienc' o( a title: ,$et$er or not it is mislea!ingA tec$nical acc%rac' is not essential an! t$e s%b9ect nee! not be state! in e4&ress terms ,$ere it is clearl' in(erable (rom t$e !etails set (ort$. *n t$is case not t$e slig$test intimation is t$ere t$at comm%nities in t$e a!9acent &rovince o( Cotabato are incor&orate! in t$is ne, Lanao !el )%r to,n. 2$e &$rase "in t$e =rovince o( Lanao !el )%r " rea! ,it$o%t s%btlet' or contortion ma+es t$e title mislea!ing !ece&tive. For t$e +no,n (act is t$at t$e legislation $as a t,oD&ronge! &%r&ose combine! in one stat%te: ;1< it creates t$e m%nici&alit' o( Dianaton &%r&orte!l' (rom t,ent'Done barrios in t$e to,ns o( B%tig an! Balabagan bot$ in t$e &rovince o( Lanao !el )%rA an! ;/< it also !ismembers t,o m%nici&alities in Cotabato a &rovince !i((erent (rom Lanao !el )%r. -es&on!ents: c$ange in bo%n!aries merel' inci!ental. )C: NOO 2rans(er o( a siBeable &ortion o( territor' (rom one &rovince to anot$er o( necessit' involves re!%ction o( area &o&%lation an! income o( t$e (irst an! t$e corres&on!ing increase o( t$ose o( t$e ot$er. 2$is is as im&ortant as t$e creation o( a m%nici&alit'. #n! 'et t$e title !i! not re(lect t$is (act. Fel,a case: cannot be consi!ere! b' t$e co%rt in t$is case ,$ile no re(erence to elective o((icials ,ere ma!e s%c$ ,ere inci!ental to t$e creation o( B M= * an! MD#. H%me v. Killage o( Fr%it&ort: #n act to incor&orate t$e village o( Fr%it&ort in t$e Co%nt' o( M%s+egon b%t stat%te incl%!e! Otta,a. Declare! %nconstit%tional (or $aving more t$an one s%b9ect. Contention: Ein t$e Co%nt' o( M%s+egonF a mere s%r&l%sage. )C: t$e co%rt cannot re9ect a &art o( t$e title (or t$e &%r&ose o( saving t$e act. -# 0785 cannot be salvage! ,it$ re(erence to t$e nine remaining to,ns. 6$ile ,$ere a &ortion o( a stat%te is ren!ere! %nconstit%tional an! t$e remain!er vali! t$e &arts ,ill be se&arate! an! t$e constit%tional &ortion %&$el! it is not so ,$en t$e &arts o( t$e stat%te are so m%t%all' !e&en!ent an! connecte! as con!itions consi!erations in!%cements or com&ensations (or eac$ ot$er as to ,arrant a belie( t$at t$e legislat%re inten!e! t$em as a ,$ole an! t$at i( all co%l! not be carrie! into e((ect t$e legislat%re ,o%l! not &ass t$e resi!%e in!e&en!entl' t$en i( some &arts are %nconstit%tional all t$e &rovisions ,$ic$ are t$%s !e&en!ent con!itional or connecte! m%st (all ,it$ t$em. Municipal corporations per!orm t"in !unctions. &irstl#. 'he# serve as an instrumentalit# o! the (tate in carr#ing out the !unctions o! government. (econ l#. 'he# act as an agenc# o! the communit# in the a ministration o! local a!!airs. )t is in the latter character that the# are a separate entit# acting !or their o"n purposes an not a sub ivision o! the (tate. several (actors come to t$e (ore in t$e consi!eration o( ,$et$er a gro%& o( barrios is ca&able o( maintaining itsel( as an in!e&en!ent m%nici&alit'. #mongst t$ese are &o&%lation territor' an! income )&ea+ing o( t$e original twenty-one barrios ,$ic$ com&rise t$e ne, m%nici&alit' t$e e4&lanator' note rea!s: t$e territor' is no, a &rogressive comm%nit'A t$e

aggregate &o&%lation is largeA an! t$e collective income is s%((icient to maintain an in!e&en!ent m%nici&alit'. 2$is bill i( enacte! into la, ,ill enable t$e in$abitants concerne! to govern t$emselves an! en9o' t$e blessings o( m%nici&al a%tonom'. Obvio%sl' ,$at ,as in t$e min! o( t$e &ro&onent ,as t$e /1 barrios an! not t$e nine remaining. Republic v. Cit# o! *avao Facts: Davao (ile! an a&&lication (or a Certi(icate o( NonDCoverage ;CNC< (or its &ro&ose! &ro9ect t$e Davao Cit' #rtica )&orts Dome ,it$ t$e 3nvironmental Management B%rea% ;3MB< -egion J*. 2$e 3MB !enie! t$e a&&lication a(ter (in!ing t$at t$e &ro&ose! &ro9ect ,as ,it$in an environmentall' critical area an! r%le! t$at &%rs%ant to )ec / =D 1C8G ;3nvironmental *m&act )tatement )'stem< in relation to )ec 0 =D 11C1 ;=$ili&&ine 3nvironment =olic'< Davao m%st %n!ergo t$e environmental im&act assessment ;3*#< &rocess to sec%re an 3nvironmental Com&liance Certi(icate ;3CC< be(ore it can &rocee! ,it$ t$e constr%ction o( its &ro9ect. Davao (ile! a &etition (or man!am%s an! in9%nction ,it$ t$e -2C o( Davao alleging t$at its &ro&ose! &ro9ect ,as neit$er an environmentall' critical &ro9ect nor ,it$in an environmentall' critical areaA t$%s o%tsi!e t$e sco&e o( t$e 3*) s'stem. Hence it ,as t$e ministerial !%t' o( t$e D3N- t$ro%g$ t$e 3MB to iss%e a CNC in (avor o( res&on!ent %&on s%bmission o( t$e re.%ire! !oc%ments. -2C: (or Davao. LG@s not re.%ire! b' =Ds 1C8G P 1C11 to com&l' ,it$ t$e 3*) la,. Onl' agencies an! instr%mentalities o( t$e NG incl%!ing GOCCs as ,ell as &rivate cor&orations (irms an! entities are man!ate! to go t$ro%g$ t$e 3*# &rocess (or t$eir &ro&ose! &ro9ects ,$ic$ $ave signi(icant e((ect on t$e .%alit' o( t$e environment. #n LG@ not being an agenc' or instr%mentalit' o( t$e NG is !eeme! e4cl%!e! %n!er t$e &rinci&le o( e4&ressio %ni%s est e4cl%sio alteri%s. M-: !enie! *ss%e: 6ON Davao is re.%ire! to com&l' ,it$ t$e 3*) la,. :3). QQDavao alrea!' e4&resse! agreement t$at it m%st sec%re an 3CC (or &ro&ose! &ro9ect $ence moot an! aca!emic b%t t$e )C !eci!e! to still !isc%ss iss%es to e!%cate t$e benc$ an! bar. Davao cannot claim e4em&tion (rom coverage o( =D 1C8G. LG@ a bo!' &olitic an! cor&orate en!o,e! ,it$ &o,ers to be e4ercise! b' it in con(ormit' ,it$ la,. *t &er(orms !%al (%nctions: ;1< Governmental (%nctions are t$ose t$at concern t$e $ealt$ sa(et' an! t$e a!vancement o( t$e &%blic goo! or ,el(are as a((ecting t$e &%blic generall'. LG@ is an agenc' o( t$e NG ;/< =ro&rietar' (%nctions are t$ose t$at see+ to obtain s&ecial cor&orate bene(its or earn &ec%niar' &ro(it an! inten!e! (or &rivate a!vantage an! bene(it. LG@ agent o( t$e comm%nit' in t$e a!ministration o( local a((airs. )ec 1G LGC: !%t' o( t$e LG@s to &romote t$e &eo&le>s rig$t to a balance! ecolog'. #s a bo!' &olitic en!o,e! ,it$ governmental (%nctions an LG@ $as t$e !%t' to ens%re t$e .%alit' o( t$e environment ,$ic$ is t$e ver' same ob9ective o( =D 1C8G. )ec 0 o( =D 1C8G clearl' states t$at Eno &erson &artners$i& or cor&oration s$all %n!erta+e or o&erate an' s%c$ !eclare! environmentall' critical &ro9ect or area ,it$o%t (irst sec%ring an 3CC iss%e! b' t$e =resi!ent or $is !%l' a%t$oriBe! re&resentative.F 2$e CC !e(ines a &erson as eit$er nat%ral or 9%ri!ical. 2$e state an! its &olitical s%b!ivisions LG@s are 9%ri!ical &ersons. @n!o%bte!l' t$ere(ore LG@s are not e4cl%!e! (rom t$e coverage o( =D 1C8G. )tate &olic': ac$ieve a balance bet,een socioDeconomic !evelo&ment an! environmental &rotection ,$ic$ are t$e t,in goals o( s%stainable !evelo&ment. 2$is can onl' be &ossible i( ,e a!o&t a com&re$ensive an! integrate! environmental &rotection &rogram ,$ere all t$e sectors o( t$e comm%nit' are involve! i.e. t$e government an! t$e &rivate sectors. 2$e LG@s as &art o( t$e mac$iner' o( t$e government cannot t$ere(ore be !eeme! as o%tsi!e t$e sco&e o( t$e 3*) s'stem. Qot$er iss%e: Davao m%st be grante! 3CC it $as !%l' &roven t$at t$e !ome ,ill not be constr%cte! in an environmentall' critical area $ence it becomes t$e ministerial !%t' o( t$e D3N- to iss%e t$e CNC. (an +uan v. C(C Facts: 6$en t$e =rovinicial Boar! O((icer &osition ,as le(t vacant -iBal Governor )an 7%an in(orme! Director #bella o( t$e De&artment o( B%!get an! Management t$at a certain )antos $a! ass%me! o((ice as acting =BO an! re.%este! #bella to en!orse )antos> a&&ointment. #bella $o,ever recommen!e! #lma9ose on

t$e basis o( a com&arative st%!' o( all MBOs ,$ic$ incl%!e! )an 7%an>s nominees. #ccor!ing to #bella #lma9ose ,as t$e most .%ali(ie! since s$e ,as t$e onl' C=# among t$e conten!ers. DMB @sec Cab%.%it signe! #lma9ose>s a&&ointment &a&ers %&on #bella>s recommen!ation. @na,are o( #lma9ose>s a&&ointment )an 7%an reiterate! $is re.%est (or )antos> a&&ointment in a letter to )ec. Carag%e. DBM -eg. Dir. GalveB ,rote )an 7ose t$at )antos an! $is ot$er recommen!ees !i! not meet t$e minim%m re.%irements %n!er Local B%!get Circ%lar 11 (or t$e &osition o( local b%!get o((icer an! re.%ire! )an 7ose to s%bmit at least t$ree ot$er nominees. #(ter (in!ing o%t abo%t #lma9ose>s a&&ointment )an 7%an ,rote Carag%e &rotesting against t$e sai! a&&ointment on t$e gro%n!s t$at Cab%.%it is not legall' a%t$oriBe! to a&&oint t$e =BOA t$at #lma9ose lac+s t$e re.%ire! t$ree 'ears ,or+ e4&erience as &rovi!e! in LBC 11A an! t$at %n!er 3O 11/ it is t$e Gov. not t$e -D or a Congressman ,$o $as t$e &o,er to recommen! nominees (or t$e &osition o( =BO. DBM t$ro%g$ its Director o( t$e B%rea% o( Legal P Legislative #((airs ;BLL#< #(%r%ng iss%e! a Memoran!%m r%ling t$at t$e )an 7%anHs letterD&rotest is not meritorio%s consi!ering t$at DBM vali!l' e4ercise! its &rerogative in (illingD%& t$e conteste! &osition since none o( t$e $is nominees met t$e &rescribe! re.%irements. )an 7%an t$en move! (or a reconsi!eration o( t$e BLL# r%ling. )%c$ ,as !enie!. He t$en ,rote t$e C)C ,$ic$ iss%e! resol%tions %&$ol!ing #lma9ose>s a&&ointment. *ss%e: 6ON t$e DBM can a&&oint an'one in t$e event t$at t$e Governor recommen!s %n.%ali(ie! &ersons. NO. iss%e is not merel' abo%t vali!it' o( a&&ointment o( =BO b%t involves t$e a&&lication o( a most im&ortant constit%tional &olic' an! &rinci&le local autonom#. 6$ere a la, is ca&able o( t,o inter&retations one in (avor o( centraliBe! &o,er in MalacaRang an! t$e ot$er bene(icial to local a%tonom' t$e scales m%st be ,eig$e! in (avor o( a%tonom'. McMinle'Hs *nstr%ctions: establis$ment o( m%nici&al governments natives a((or!e! t$e o&&ort%nit' to manage t$eir o,n local o((icers to t$e (%llest e4tent o( ,$ic$ t$e' are ca&able an! s%b9ect to t$e least !egree o( s%&ervision an! control 181C Constit%tion: limite! t$e e4ec%tive &o,er over local governments to "general s%&ervision . . . as ma' be &rovi!e! b' la,." Tecson v. Salas: &resi!ential com&etence is not even s%&ervision in general b%t general s%&ervision as ma' be &rovi!e! b' la,. He co%l! not t$%s go be'on! t$e a&&licable stat%tor' &rovisions ,$ic$ bin! an! (etter $is !iscretion on t$e matter. )%&ervision goes no (%rt$er t$an "overseeing or t$e &o,er or a%t$orit' o( an o((icer to see t$at s%bor!inate o((icers &er(orm t$eir !%ties. *( t$e latter (ail or neglect to (%l(ill t$em t$e (ormer ma' ta+e s%c$ action or ste& as &rescribe! b' la, to ma+e t$em &er(orm t$eir !%ties." Control "means t$e &o,er o( an o((icer to alter or mo!i(' or n%lli(' or set asi!e ,$at a s%bor!inate $a! !one in t$e &er(ormance o( t$eir !%ties an! to s%bstit%te t$e 9%!gment o( t$e (ormer (or t$at o( t$e latter." -# //G0 "#n #ct #men!ing t$e La, Governing Local Governments b' *ncreasing 2$eir #%tonom' an! -eorganiBing Local Governments" ,as &asse!. *t ,as (ollo,e! in 18G7 ,$en -e&%blic #ct No. C18C t$e DecentraliBation La, ,as enacte! giving "(%rt$er a%tonomo%s &o,ers to local governments governments." 1871 Constit%tion: t$e state s$all g%arantee an! &romote t$e a%tonom' o( LG@s es&eciall' t$e baranga' to ens%re t$eir (%llest !evelo&ment as sel(Dreliant comm%nities. article on Local Government ,as incor&orate! into t$e Constit%tion. *t calle! (or a LGC !e(ining more res&onsive an! acco%ntable local government str%ct%res. 2$e e4ercise o( greater local a%tonom' is even more mar+e! in t$e &resent Constit%tion. #rticle ** )ection /C on )tate =olicies &rovi!es: )ec. /C. 2$e )tate s$all ens%re t$e a%tonom' o( local governments 2$e 10 sections in #rticle J on Local Government not onl' reiterate earlier !octrines b%t give in greater !etail t$e &rovisions ma+ing local a%tonom' more meaning(%l. 2$%s )ections / an! 1 o( #rticle J &rovi!e:

)ec. /. 2$e territorial an! &olitical s%b!ivisions s$all en9o' local a%tonom'. )ec. 1. 2$e Congress s$all enact a LGC ,$ic$ s$all &rovi!e (or a more res&onsive an! acco%ntable local government str%ct%re instit%te! t$ro%g$ a s'stem o( !ecentraliBation ,it$ e((ective mec$anisms o( recall initiative an! re(eren!%m allocate among t$e !i((erent LG@s t$eir &o,ers res&onsibilities an! reso%rces an! &rovi!e (or t$e .%ali(ications election a&&ointment an! removal term salaries &o,ers an! (%nctions an! !%ties o( local o((icials an! all ot$er matters relating to t$e organiBation an! o&eration o( t$e local %nits. 6$en t$e Civil )ervice Commission inter&rete! t$e recommen!ing &o,er o( t$e =rovincial Governor as &%rel' !irector' it ,ent against t$e letter an! s&irit o( t$e constit%tional &rovisions on local a%tonom'. *( t$e DBM )ecretar' 9ealo%sl' $oar!s t$e entiret' o( b%!getar' &o,ers an! ignores t$e rig$t o( local governments to !evelo& sel(Dreliance an! resol%teness in t$e $an!ling o( t$eir o,n (%n!s t$e goal o( meaning(%l local a%tonom' is (r%strate! an! set bac+. 2$e rig$t given b' Local B%!get Circ%lar No. 11 ,$ic$ states: )ec. G.5 S 2$e DBM reserves t$e rig$t to (ill %& an' e4isting vacanc' ,$ere none o( t$e nominees o( t$e local c$ie( e4ec%tive meet t$e &rescribe! re.%irements. is %ltra vires an! is accor!ingl' set asi!e. 2$e DBM ma' a&&oint onl' (rom t$e list o( .%ali(ie! recommen!ees nominate! b' t$e Governor. *( none is .%ali(ie! $e m%st ret%rn t$e list o( nominees to t$e Governor e4&laining ,$' no one meets t$e legal re.%irements an! as+ (or ne, recommen!ees ,$o $ave t$e necessar' eligibilities an! .%ali(ications. 2$e =BO is e4&ecte! to s'nc$roniBe $is ,or+ ,it$ DBM. More im&ortant $o,ever is t$e &ro&er a!ministration o( (iscal a((airs at t$e local level. =rovincial an! m%nici&al b%!gets are &re&are! at t$e local level an! a(ter com&letion are (or,ar!e! to t$e national o((icials (or revie,. 2$e' are &re&are! b' t$e local o((icials ,$o m%st ,or+ ,it$in t$e constraints o( t$ose b%!gets. 2$e' are not (orm%late! in t$e inner sanct%ms o( an allD+no,ing DBM an! %nilaterall' im&ose! on local governments ,$et$er or not t$e' are relevant to local nee!s an! reso%rces. *t is (or t$is reason t$at t$ere s$o%l! be a gen%ine inter&la' a balancing o( vie,&oints an! a $armoniBation o( &ro&osals (rom bot$ t$e local an! national o((icials. *t is (or t$is reason t$at t$e nomination an! a&&ointment &rocess involves a s$aring o( &o,er bet,een t$e t,o levels o( government. *t ma' not be amiss to give b' ,a' o( analog' t$e &roce!%re (ollo,e! in t$e a&&ointments o( 7%stices an! 7%!ges. @n!er #rticle K*** o( t$e Constit%tion nominations (or 9%!icial &ositions are ma!e b' t$e 7%!icial an! Bar Co%ncil. 2$e =resi!ent ma+es t$e a&&ointments (rom t$e list o( nominees s%bmitte! to $er b' t$e Co%ncil. )$e cannot a&&l' t$e DBM &roce!%re re9ect all t$e Co%ncil nominees an! a&&oint anot$er &erson ,$om s$e (eels is better .%ali(ie!. 2$ere can be no reservation o( t$e rig$t to (ill %& a &osition ,it$ a &erson o( t$e a&&ointing &o,erHs &ersonal c$oice. 2$e &%blic res&on!entHs grave ab%se o( !iscretion is aggravate! b' t$e (act t$at Director GalveB re.%ire! t$e =rovincial Governor to s%bmit at least t$ree ot$er names o( nominees better .%ali(ie! t$an $is earlier recommen!ation. *t ,as a meaningless e4ercise. 2$e a&&ointment o( t$e &rivate res&on!ent ,as (ormaliBe! be(ore t$e Governor ,as e4ten!e! t$e co%rtes' o( being in(orme! t$at $is nominee $a! been re9ecte!. 2$e com&lete !isregar! o( t$e local governmentHs &rerogative an! t$e sm%g belie( t$at t$e DBM $as absol%te ,is!om a%t$orit' an! !iscretion are mani(est. *n $is classic ,or+ "=$ili&&ine =olitical La," Dean Kicente G. )inco state! t$at t$e val%e o( local governments as instit%tions o( !emocrac' is meas%re! b' t$e !egree o( a%tonom' t$at t$e' en9o'. Citing 2oc.%eville $e state! t$at "local assemblies o( citiBens constit%te t$e strengt$ o( (ree nations. . . . # &eo&le ma' establis$ a s'stem o( (ree government b%t ,it$o%t t$e s&irit o( m%nici&al instit%tions it cannot $ave t$e s&irit o( libert'." ;)inco =$ili&&ine =olitical La, 3levent$ 3!ition &&. 75CD75G<. O%r national o((icials s$o%l! not onl' com&l' ,it$ t$e constit%tional &rovisions on local a%tonom' b%t s$o%l! also a&&reciate t$e s&irit o( libert' %&on ,$ic$ t$ese &rovisions are base!. Pimentel v. Aguirre Facts: 'an v. COM%L%C Facts: Ganzon v. C(C

Facts: Cor illera Broa Coalition v. COA Facts: Limbona v. Mangelin Facts:

$im as ,ell as $is re&resentatives an! agents (rom &assing in a%!it an' e4&en!it%re o( &%blic (%n!s in im&lementation o( sai! 3Os an!?or an' !isb%rsement b' sai! m%nici&alities. =elaeB claims t$at -# /175 $a! alrea!' im&lie!l' re&eale! )ec G8. -# /175 )ec 1:Barrios shall not be created or their boundaries altered nor their names changed except under the provisions of this Act or by Act of Congress; All barrios existing at the time of the passage of this Act shall come under the provisions hereof. 6$en -# /175 became e((ective barrios ma' "not be create! or t$eir bo%n!aries altere! nor t$eir names c$ange!" e4ce&t b' #ct o( Congress or o( t$e corres&on!ing &rovincial boar! "%&on &etition o( a ma9orit' o( t$e voters in t$e areas a((ecte!" an! t$e "recommen!ation o( t$e co%ncil o( t$e m%nici&alit' or m%nici&alities in ,$ic$ t$e &ro&ose! barrio is sit%ate!." *))@3: *( t$e =resi!ent %n!er t$is ne, la, cannot even create a barrio can $e create a m%nici&alit' ,$ic$ is com&ose! o( several barrios since barrios are %nits o( m%nici&alitiesT ,O. 2$e stat%tor' !enial o( t$e &resi!ential a%t$orit' to create a ne, barrio im&lies a negation o( t$e bigger &o,er to create m%nici&alities eac$ o( ,$ic$ consists o( several barrios. n delegation of legislative power! 6$ile t$e &o,er to (i4 s%c$ common bo%n!ar' in or!er to avoi! or settle con(licts o( 9%ris!iction bet,een a!9oining m%nici&alities ma' &arta+e o( an a!ministrative nat%re S involving as it !oes t$e a!o&tion o( means an! ,a's to carr' into e((ect t$e la, creating sai! m%nici&alities S t$e a%t$orit' to create m%nici&al cor&orations is essentiall' legislative in nat%re. *n t$e lang%age o( ot$er co%rts it is "strictl' a legislative (%nction" or "solel' an! e4cl%sivel' t$e e4ercise o( legislative &o,er. " M%nici&al cor&orations are &%rel' t$e creat%res o( stat%tes. #lt$o%g$ Congress ma' !elegate to anot$er branc$ o( t$e Government t$e &o,er to (ill in t$e !etails in t$e e4ec%tion en(orcement or a!ministration o( a la, it is essential to (orestall a violation o( t$e &rinci&le o( se&aration o( &o,ers t$at sai! la,: ;a< be com&lete in itsel( S it m%st set (ort$ t$erein t$e &olic' to be e4ec%te! carrie! o%t or im&lemente! b' t$e !elegate S an! ;b< (i4 a stan!ar! S t$e
Pelaez v. Au itor General Facts: =%rs%ant to )ec G8 o( t$e -#C t$e =resi!ent iss%e! 3Os 81D 1/1 1/0 an! 1/GD1/8 ,$ic$ create! 11 &rovinces. =elaeB instit%te! t$e &resent s&ecial civil action (or a ,rit o( &ro$ibition ,it$ &reliminar' in9%nction against t$e #%!itor General to restrain
15

limits o( ,$ic$ are s%((icientl' !eterminate or !eterminable S to ,$ic$ t$e !elegate m%st con(orm in t$e &er(ormance o( $is (%nctions. )ection G8 o( t$e -evise! #!ministrative Co!e !oes not meet t$ese ,ell settle! re.%irements (or a vali! !elegation o( t$e &o,er to (i4 t$e !etails in t$e en(orcement o( a la,. *t !oes not en%nciate an' &olic' to be carrie! o%t or im&lemente! b' t$e =resi!ent. Neit$er !oes it give a stan!ar! s%((icientl' &recise to avoi! t$e evil e((ects above re(erre! to. )c$ec$ter case: N*-# %nconstit%tional. *t s%&&lies no stan!ar!s (or an' tra!e in!%str' or activit'. *t !oes not %n!erta+e to &rescribe r%les o( con!%ct to be a&&lie! to &artic%lar states o( (act !etermine! b' a&&ro&riate a!ministrative &roce!%re. *nstea! o( &rescribing r%les o( con!%ct it a%t$oriBes t$e ma+ing o( co!es to &rescribe t$em. For t$at legislative %n!erta+ing )ec. 1 sets %& no stan!ar!s asi!e (rom t$e statement o( t$e general aims o( re$abilitation correction an! e4&ansion !escribe! in )ec. 1. *n vie, o( t$e sco&e o( t$at broa! !eclaration an! o( t$e nat%re o( t$e (e, restrictions t$at are im&ose! t$e !iscretion o( t$e =resi!ent in a&&roving or &rescribing co!es an! t$%s enacting la,s (or t$e government o( tra!e an! in!%str' t$ro%g$o%t t$e co%ntr' is virt%all' %n(ettere!. 6e t$in+ t$at t$e co!e ma+ing a%t$orit' t$%s con(erre! is an %nconstit%tional !elegation o( legislative &o,er. *( t$e term "%n(air com&etition" is so broa! as to vest in t$e =resi!ent a !iscretion t$at is "virt%all' %n(ettere!." an! conse.%entl' tantamo%nt to a !elegation o( legislative &o,er it is obvio%s t$at "&%blic ,el(are " ,$ic$ $as even a broa!er connotation lea!s to t$e same res%lt. *n (act i( t$e vali!it' o( t$e !elegation o( &o,ers ma!e in )ection G8 ,ere %&$el! t$ere ,o%l! no longer be an' legal im&e!iment to a stat%tor' grant o( a%t$orit' to t$e =resi!ent to !o an't$ing ,$ic$ in $is o&inion ma' be re.%ire! b' &%blic ,el(are or &%blic interest. )%c$ grant o( a%t$orit' ,o%l! be a virt%al ab!ication o( t$e &o,ers o( Congress in (avor o( t$e 34ec%tive an! ,o%l! bring abo%t a total colla&se o( t$e !emocratic s'stem establis$e! b' o%r Constit%tion ,$ic$ it is t$e s&ecial !%t' an! &rivilege o( t$is Co%rt to %&$ol!. the executive orders in "uestion were issued after the legislative bills for the creation of the municipalities involved in this case had failed to pass Congress. # better &roo( o( t$e (act t$at t$e iss%ance o( sai! e4ec%tive or!ers entails t$e e4ercise o( &%rel' legislative (%nctions can $ar!l' be given. n the #resident$s power of control! )ec 15 ;1< #rt. K** Consti: The #resident shall have control of all the executive departments% bureaus% or offices% exercise general supervision over all local governments as may be provided by law% and ta&e care that the laws be faithfully executed. 2$e &o,er o( control %n!er t$is &rovision im&lies t$e rig$t o( t$e =resi!ent to inter(ere in t$e e4ercise o( s%c$ !iscretion as ma' be veste! b' la, in t$e o((icers o( t$e e4ec%tive !e&artments b%rea%s or o((ices o( t$e national government as ,ell as to act in lie% o( s%c$ o((icers. 2$is po"er is enie b# the Constitution to the %xecutive- inso!ar as local governments are concerne . LG@s: (%n!amental la, &ermits $im to ,iel! no more a%t$orit' t$an t$at o( c$ec+ing ,$et$er sai! local governments or t$e o((icers t$ereo( &er(orm t$eir !%ties as &rovi!e! b' stat%tor' enactments. 2$e =resi!ent cannot inter(ere ,it$ local governments so long as t$e same or its o((icers act 6it$in t$e sco&e o( t$eir a%t$orit'. @&on t$e ot$er $an! i( t$e =resi!ent co%l! create a m%nici&alit' $e co%l! in e((ect remove an' o( its o((icials b' creating a ne, m%nici&alit' an! incl%!ing t$erein t$e barrio in ,$ic$ t$e o((icial concerne! resi!es (or $is o((ice ,o%l! t$ereb' become vacant.G 2$%s b' merel' bran!is$ing t$e &o,er to create a ne, m%nici&alit' ;i( $e $a! it< ,it$o%t act%all' creating it $e co%l! com&el local o((icials to s%bmit to $is !ictation t$ereb' in e((ect
11

e4ercising over t$em t$e &o,er o( control !enie! to $im b' t$e Constit%tion. 2$en also t$e &o,er o( control o( t$e =resi!ent over e4ec%tive !e&artments b%rea%s or o((ices im&lies no more t$an t$e a%t$orit' to ass%me !irectl' t$e (%nctions t$ereo( or to inter(ere in t$e e4ercise o( !iscretion b' its o((icials. Mani(estl' s%c$ control !oes not incl%!e t$e a%t$orit' eit$er to abolis$ an e4ec%tive !e&artment or b%rea% or to create a ne, one. #s a conse.%ence t$e allege! &o,er o( t$e =resi!ent to create m%nici&al cor&orations ,o%l! necessaril' connote t$e e4ercise b' $im o( an a%t$orit' even greater t$an t$at o( control ,$ic$ $e $as over t$e e4ec%tive !e&artments b%rea%s or o((ices. *n ot$er ,or!s )ec G8 o( t$e -evise! #!ministrative Co!e !oes not merel' (ail to com&l' ,it$ t$e constit%tional man!ate above .%ote!. *nstea! o( giving t$e =resi!ent less &o,er over local governments t$an t$at veste! in $im over t$e e4ec%tive !e&artments b%rea%s or o((ices it reverses t$e &rocess an! !oes t$e e4act o&&osite b' con(erring %&on $im more &o,er over m%nici&al cor&orations t$an t$at ,$ic$ $e $as over sai! e4ec%tive !e&artments b%rea%s or o((ices. *n s$ort even i( it !i! entail an %n!%e !elegation o( legislative &o,ers as it certainl' !oes sai! )ection G8 as &art o( t$e -evise! #!ministrative Co!e a&&rove! on Marc$ 15 1817 m%st be !eeme! re&eale! b' t$e s%bse.%ent a!o&tion o( t$e Constit%tion in 181C ,$ic$ is %tterl' incom&atible an! inconsistent ,it$ sai! stat%tor' enactment. Municipalit# o! .apalong v. Mo#a Facts: =res. Garcia create! t$e M%nici&alit' o( )anto 2omas (rom &ortions o( t$e M%nici&alit' o( Ma&along. )to. 2omas no, asserts 9%ris!iction over eig$t barrios o( Ma&along. )to. 2omas t$en (ile! a com&laint against Ma&along (or settlement o( t$e m%nici&al bo%n!ar' !is&%te. *ss%e: 6ON )anto 2omas legall' e4ists. NO. #s r%le! in t$e =elaeB case t$e =resi!ent $as no &o,er to create a m%nici&alit'. )ince &rivate res&on!ent $as no legal &ersonalit' it can not be a &art' to an' civil action an! as s%c$ 7%!ge Mo'a s$o%l! $ave !ismisse! t$e case since (%rt$er &rocee!ings ,o%l! be &ointless. 2$e -%les o( Co%rt e4&ressl' &rovi!es t$at onl' "entities a%t$oriBe! b' la, ma' be &arties in a civil action. Alvarez v. Guingona /supra- see p.01 Ca"aling v. COM%L%C Facts: =resi!ent 3stra!a signe! into la, -# 885G ;#ct Creating 2$e Cit' O( )orsogon B' Merging 2$e M%nici&alities O( Bacon #n! )orsogon *n 2$e =rovince O( )orsogon #n! #&&ro&riating F%n!s 2$ere(or<. 2$e COM3L3C con!%cte! a &lebiscite in Bacon an! )orsogon an! s%bmitte! t$e matter (or rati(ication. 2$e =lebiscite Cit' Boar! o( Canvassers ;=CBC< t$en &roclaime! t$e creation o( t$e Cit' o( )orsogon as $aving been rati(ie! an! a&&rove! b' t$e ma9orit' o( t$e votes cast in t$e &lebiscite. Ca,aling invo+ing $is rig$ts as a ta4&a'er (ile! a &etition (or certiorari see+ing t$e ann%lment o( t$e &lebiscite an! c$allenging -# 885G. *ss%es: 1. 6ON t$e creation o( )orsogon Cit' b' merging t,o m%nici&alities violates )ection 0C5;a< LGC ;in relation to )ection 15 #rticle J o( t$e Constit%tion< ,$ic$ re.%ires t$at onl' "a m%nici&alit' or a cl%ster o( baranga's ma' be converte! into a com&onent cit'" NO. Criteria (or t$e creation o( a cit': )3C2*ON 0C5. -e.%isites (or Creation. S ;a< # m%nici&alit' or a cl%ster o( baranga's ma' be converte! into a com&onent cit' i( it $as an average ann%al income as certi(ie! b' t$e De&artment o( Finance o( at least 2,ent' million ;=/5 555 555.55< (or t$e last t,o ;/< consec%tive 'ears base! on 1881 constant &rices an! i( it $as eit$er o( t$e (ollo,ing re.%isites: ;i< a contig%o%s territor' o( at least one $%n!re! ;155< s.%are +ilometers as certi(ie! b' t$e Lan!s Management B%rea%A or ;ii< a &o&%lation o( not less t$an one $%n!re! (i(t' t$o%san! ;1C5 555< in$abitants as certi(ie! b' t$e National )tatistics O((ice: =rovi!e! 2$at t$e creation t$ereo( s$all not re!%ce t$e lan! area &o&%lation an! income o( t$e original %nit or %nits at t$e time o( sai! creation to less t$an t$e minim%m re.%irements &rescribe! $erein. ;b< 2$e territorial 9%ris!iction o( a ne,l'D
1/

create! cit' s$all be &ro&erl' i!enti(ie! b' metes an! bo%n!s. 2$e re.%irement on lan! area s$all not a&&l' ,$ere t$e cit' &ro&ose! to be create! is com&ose! o( one ;1< or more islan!s. 2$e territor' nee! not be contig%o%s i( it com&rises t,o ;/< or more islan!s. ;c< 2$e average ann%al income s$all incl%!e t$e income accr%ing to t$e general (%n! e4cl%sive o( s&eci(ic (%n!s trans(ers an! nonDrec%rring income." =etitionerHs constricte! rea!ing o( )ection 0C5;a< o( t$e Co!e is erroneo%s. 2$e &$rase "# m%nici&alit' or a cl%ster o( baranga's ma' be converte! into a com&onent cit'" is not a criterion b%t sim&l' one o( t$e mo!es b' ,$ic$ a cit' ma' be create!. )ection 15 #rticle J o( t$e Constit%tion .%ote! earlier an! ,$ic$ &etitioner cite! in s%&&ort o( $is &ost%re allo,s t$e merger o( LG@s to create a &rovince cit' m%nici&alit' or baranga' in accor!ance ,it$ t$e criteria establis$e! b' t$e Co!e. 2$e creation o( an entirel' ne, LG@ t$ro%g$ a !ivision or a merger o( e4isting LG@s is recogniBe! %n!er t$e Constit%tion &rovi!e! t$at s%c$ merger or !ivision s$all com&l' ,it$ t$e re.%irements &rescribe! b' t$e Co!e. 1. 6ON it violates t$e Eone bill one s%b9ectF r%le. NO. =etitioner conten!s t$at -.#. No. 885G act%all' embraces t,o &rinci&al s%b9ects ,$ic$ are: ;1< t$e creation o( t$e Cit' o( )orsogon an! ;/< t$e abolition o( t$e M%nici&alities o( Bacon an! )orsogon. 6$ile t$e title o( t$e #ct s%((icientl' in(orms t$e &%blic abo%t t$e creation o( )orsogon Cit' &etitioner claims t$at no s%c$ in(ormation $as been &rovi!e! on t$e abolition o( t$e M%nici&alities o( Bacon an! )orsogon. Contrar' to &etitionerHs assertion t$ere is onl' one s%b9ect embrace! in t$e title o( t$e la, t$at is t$e creation o( t$e Cit' o( )orsogon. 2$e abolition?cessation o( t$e cor&orate e4istence o( t$e M%nici&alities o( Bacon an! )orsogon !%e to t$eir merger is not a s%b9ect se&arate an! !istinct (rom t$e creation o( )orsogon Cit'. )%c$ abolition?cessation ,as b%t t$e logical nat%ral an! inevitable conse.%ence o( t$e merger. Ot$er,ise &%t it is t$e necessar' means b' ,$ic$ t$e Cit' o( )orsogon ,as create!. Hence t$e title o( t$e la, "#n #ct Creating t$e Cit' o( )orsogon b' Merging t$e M%nici&alities o( Bacon an! )orsogon in t$e =rovince o( )orsogon an! #&&ro&riating F%n!s 2$ere(or " cannot be sai! to e4cl%!e t$e inci!ental e((ect o( abolis$ing t$e t,o m%nici&alities nor can it be consi!ere! to $ave !e&rive! t$e &%blic o( (air in(ormation on t$is conse.%ence. 1. 6ON t$e &lebiscite ,as timel' con!%cte!. :3). 2$e la, ,as (irst &%blis$e! in t$e #%g%st /C /555 iss%e o( 2OD#: a ne,s&a&er o( general circ%lation. 2$en on )e&tember 51 /555 it ,as &%blis$e! in a ne,s&a&er o( local circ%lation in t$e =rovince o( )orsogon. 2$%s t$e &%blication o( t$e la, ,as com&lete! on )e&tember 1 /555 ,$ic$ !ate accor!ing to t$e COM3L3C s$o%l! be t$e rec+oning &oint in !etermining t$e 1/5D!a' &erio! ,it$in ,$ic$ to con!%ct t$e &lebiscite not (rom t$e !ate o( its a&&roval ;#%g%st 1G /555< ,$en t$e la, $a! not 'et been &%blis$e!. 2$e COM3L3C arg%es t$at since &%blication is in!is&ensable (or t$e e((ectivit' o( a la, citing t$e lan!mar+ case o( 2aRa!a vs. 2%vera it co%l! onl' sc$e!%le t$e &lebiscite a(ter t$e #ct too+ e((ect. 2$%s t$e COM3L3C concl%!es t$e December 1G /555 &lebiscite ,as ,ell ,it$in t$e 1/5D!a' &erio! (rom t$e e((ectivit' o( t$e la, on )e&tember 1 /555 t$e &lebiscite s$all be con!%cte! ,it$in 1/5 !a's (rom t$e !ate o( t$e e((ectivit' o( t$e la, not (rom its a&&roval. 6$ile t$e same &rovision allo,s a la, or or!inance to (i4 "anot$er !ate" (or con!%cting a &lebiscite still s%c$ !ate m%st be rec+one! (rom t$e !ate o( t$e e((ectivit' o( t$e la,. Conse.%entl' t$e ,or! "a&&roval" in )ection C0 o( -.#. No. 885G ,$ic$ s$o%l! be rea! toget$er ,it$ )ection GC ;e((ectivit' o( t$e #ct< t$ereo( co%l! onl' mean "e((ectivit'" as %se! an! contem&late! in )ection 15 o( t$e Co!e. 2$is constr%ction is in accor! ,it$ t$e (%n!amental r%le t$at all &rovisions o( t$e la,s relating to t$e same s%b9ect s$o%l! be
11

rea! toget$er an! reconcile! to avoi! inconsistenc' or re&%gnanc' to establis$e! 9%ris&r%!ence Pelaez v. Au itor General /supra- see p.021 Municipalit# o! Can i3a# v. CA Facts: 2$e M%nici&alities o( #licia an! Can!i9a' ,ere in !is&%te over barrio?baranga' =aga$at. 2$e -2C r%le! in (avor o( Can!i9a'. C# : 1. Co%rt re9ecte! t$e bo%n!ar' line being claime! b' &etitioner since it ,o%l! in e((ect &lace "&racticall' all o( Barrio =aga$at . . . &art o( Barrio Cagongcagong an! &ortions o( Barrio =%tlongcam an! La Hacien!a an! all o( Barrio Ma$a'ag an! Barrio !el Monte ,it$in t$e territorial 9%ris!iction o( Can!i9a'." Can!i9a' ,ill not onl' eng%l( t$e entire barrio o( =aga$at b%t also o( t$e barrios o( =%tlongcam Ma$a'ag Del Monte Cagongcagong an! a &art o( t$e M%nici&alit' o( Mabini. Can!i9a' ,ill eat %& a big c$%n+ o( territories (ar e4cee!ing $er territorial 9%ris!iction %n!er t$e la, creating $er. /. 2rial co%rt erre! in rel'ing on 34$. JDCommissioner Ue4$ibit (or &etitionerV beca%se in e((ect it incl%!e! &ortions o( Barrios =%tlongcam an! La Hacien!a ,it$in t$e 9%ris!iction o( Can!i9a' ,$en sai! barrios are %n!is&%te!l' &art o( #licia>s territor' %n!er 3O/GC creating t$e latter" 3. #(ter an e4amination o( t$e res&ective s%rve' &lans o( &etitioner an! res&on!ent s%bmitte! as e4$ibits co%rt: "bot$ &lans are ina!e.%ate inso(ar as i!enti('ing t$e mon%ments o( t$e bo%n!ar' line bet,een Can!i9a' an! t$e M%nici&alit' o( Mabini ;,$ic$ is not a &art' to t$is case< as !eclare! b' t$e =rovincial Boar! o( Bo$ol. Neit$er &lan s$o,s ,$ere LoocD2abasan Lomislis *slan! 2agtang Canlirong mentione! in t$e a(ore.%ote! bo%n!ar' line !eclare! b' t$e =rovincial Boar! o( Bo$ol are act%all' locate!." 2$e res&on!ent Co%rt a(ter ,eig$ing an! consi!ering t$e im&ort o( certain o((icial acts incl%!ing 3O. /GC !ate! )e&tember 1G 1808 ;,$ic$ create! t$e m%nici&alit' o( #licia (rom o%t o( certain barrios o( t$e m%nici&alit' o( Mabini< an! #ct 8G8 o( t$e =$ili&&ine Commission !ate! October 11 1851 ;,$ic$ set (ort$ t$e res&ective com&onent territories o( t$e m%nici&alities o( Mabini an! Can!i9a'< concl%!e! t$at "Barrio B%la,an (rom ,$ere barrio =aga$at originate! is not mentione! as one o( t$e barrios constit%te! as &art o( !e(en!antDa&&ellant M%nici&alit' o( #licia. Neit$er !o t$e' s$o, t$at Barrio =aga$at (orms &art o( &lainti((Da&&ellant M%nici&alit' o( Can!i9a'." 4. C#: t$ere is an e.%i&on!erance o( evi!ence 6$en t$e scale s$all stan! %&on an e.%i&oise an! t$ere is not$ing in t$e evi!ence ,$ic$ s$all incline it to one si!e or t$e ot$er t$e co%rt ,ill (in! (or t$e !e(en!ant. @n!er sai! &rinci&le t$e &lainti(( m%st rel' on t$e strengt$ o( $is evi!ence an! not on t$e ,ea+ness o( !e(en!antHs claim. 3ven i( t$e evi!ence o( t$e &lainti(( ma' be stronger t$an t$at o( t$e !e(en!ant t$ere is no &re&on!erance o( evi!ence on $is si!e i( s%c$ evi!ence is ins%((icient in itsel( to establis$ $is ca%se o( action *ss%es: 1. 6ON t$e C# erre! in its a&&lication o( t$e &rinci&le o( "e.%i&on!erance o( evi!ence" (or $aving base! its r%ling against &etitioner on !oc%mentar' evi!ence ,$ic$ &etitioner claims are voi! /. t$at t$e c$allenge! Decision "!oes not solve t$e &roblem o( bot$ to,ns b%t t$ro,s t$em bac+ again to t$eir controvers'." 6it$ res&ect to t$e (irst an! secon! gro%n!s ,e (in! t$at t$e iss%es o( (act in t$is case $a! been a!e.%atel' &asse! %&on b' res&on!ent Co%rt in its Decision ,$ic$ is ,ellDs%&&orte! b' t$e evi!ence on recor!. 2$e !etermination o( e.%i&on!erance o( evi!ence b' t$e res&on!ent Co%rt involves t$e a&&reciation o( evi!ence b' t$e latter trib%nal ,$ic$ ,ill not be revie,e! b' t$is Co%rt %nless s$o,n to be ,$imsical or ca&ricio%sA $ere t$ere $as been no s%c$ s$o,ing. Neit$er &art' ,as able to ma+e o%t a caseA neit$er si!e co%l! establis$ its ca%se o( action an! &revail ,it$ t$e evi!ence it $a!. #s a conse.%ence t$ereo( t$e co%rts can onl' leave t$em as t$e' are. *n s%c$ cases co%rts $ave no c$oice b%t to !ismiss t$e com&laints?&etitions. 1.#licia>s &%r&orte! lac+ o( 9%ri!ical &ersonalit' as a res%lt o( $aving been create! %n!er a voi! e4ec%tive or!er Can!i9a' commence! its collateral attac+ on t$e 9%ri!ical &ersonalit' o( #licia some t$irt' (ive 'ears a(ter it (irst came into e4istence in 1808. *t a&&ears t$at a(ter &resentation o( its evi!ence Can!i9a' as+e! t$e trial co%rt to bar #licia (rom &resenting its evi!ence on t$e gro%n! t$at it $a! no 9%ri!ical
10

&ersonalit'. Can!i9a' conten!e! t$at 3O /GC iss%e! b' is n%ll an! voi! ab initio inasm%c$ as )ec G8 o( t$e -#C on ,$ic$ sai! 3O ,as base! constit%te! an %n!%e !elegation o( legislative &o,ers to t$e =resi!ent o( t$e =$ili&&ines an! ,as t$ere(ore !eclare! %nconstit%tional &er t$is Co%rtHs r%ling in #elae' vs. Auditor (eneral. )unicipality of San *arciso% +ue'on vs. )ende'% Sr: 3O 1C1 creating t$e m%nici&al !istrict o( )an #n!res ,as iss%e! on /5 #%g%st 18C8 b%t it ,as onl' after almost thirty ,-./ years or on 5C 7%ne 1888 t$at t$e m%nici&alit' o( )an Narciso (inall' !eci!e! to c$allenge t$e legalit' o( t$e e4ec%tive or!er. *n t$e meantime t$e M%nici&al !istrict an! later t$e M%nici&alit' o( )an #n!res began an! contin%e! to e4ercise t$e &o,ers an! a%t$orit' o( a !%l' create! LG@. Granting t$at 3O 1C1 ,as a com&lete n%llit' (or being t$e res%lt o( an %nconstit%tional !elegation o( legislative &o,er t$e &ec%liar circ%mstances obtaining in t$is case $ar!l' co%l! o((er a c$oice ot$er t$an to consi!er t$e M%nici&alit' o( )an #n!res to $ave at least attaine! a stat%s %ni.%el' o( its o,n closel' a&&ro4imating i( not in (act attaining t$at o( a de facto m%nici&al cor&oration. Conventional ,is!om cannot allo, it to be ot$er,ise. Create! in 18C8 b' virt%e o( 3O 1C1 t$e M%nici&alit' o( )an #n!res $a! been in e4istence (or more t$an si4 'ears ,$en on /0 December 18GC #elae' vs. Auditor (eneral ,as &rom%lgate!. 2$e r%ling co%l! $ave so%n!e! t$e call (or a similar !eclaration o( t$e %nconstit%tionalit' o( 3O 1C1 b%t it ,as not to be t$e case. On t$e contrar' certain governmental acts all &ointe! to t$e )tateHs recognition o( t$e contin%e! e4istence o( t$e M%nici&alit' o( )an #n!res: 1. 3O 170 classi(ie! t$e M%nici&alit' o( )an #n!res as a (i(t$ class m%nici&alit' a(ter $aving s%r&asse! t$e income re.%irement. /. @n!er #O 11 t$e M%nici&alit' o( )an #n!res $a! been covere! b' t$e 15t$ M%nici&al Circ%it Co%rt o( )an FranciscoD)an #n!res (or t$e &rovince o( W%eBon. 1. @n!er t$e Or!inance ;a!o&te! on 1C October 188G< a&&ortioning t$e seats o( t$e Ho%se o( -e&resentatives a&&en!e! to t$e 1887 Constit%tion t$e M%nici&alit' o( )an #n!res $as been consi!ere! to be one o( t$e t,elve ;1/< m%nici&alities com&osing t$e 2$ir! District o( t$e &rovince o( W%eBon. 0. )ection 00/ ;!< o( t$e LGC to t$e e((ect t$at m%nici&al !istricts "organiBe! &%rs%ant to &resi!ential iss%ances or e4ec%tive or!ers an! ,$ic$ $ave t$eir res&ective sets o( elective m%nici&al o((icials $ol!ing o((ice at t$e time o( t$e e((ectivit' o( ;t$e< Co!e s$all $ence(ort$ be consi!ere! as reg%lar m%nici&alities." No &retension o( %nconstit%tionalit' per se o( )ection 00/ ;!< o( t$e LGC is &ro((ere!. *t is !o%bt(%l ,$et$er s%c$ a &rete4t even i( ma!e ,o%l! s%ccee!. 2$e &o,er to create &olitical s%b!ivisions is a (%nction o( t$e legislat%re. Congress !i! 9%st t$at ,$en it $as incor&orate! )ection 00/ ;!< in t$e Co!e. Curative la,s ,$ic$ in essence are retros&ective an! aime! at giving "vali!it' to acts !one t$at ,o%l! $ave been invali! %n!er e4isting la,s as i( e4isting la,s $ave been com&lie! ,it$ " are vali!l' acce&te! in t$is 9%ris!iction s%b9ect to t$e %s%al .%ali(ication against im&airment o( veste! rig$ts. #ll consi!ere! t$e de 0ure stat%s o( t$e M%nici&alit' o( )an #n!res in t$e &rovince o( W%eBon m%st no, be conce!e!.
#liciaHs sit%ation in t$e instant case is stri+ingl'

similar to t$at o( t$e m%nici&alit' o( )an #n!res. #licia ,as create! b' virt%e o( 3O /GC in 1808 or ten 'ears a$ea! o( t$e m%nici&alit' o( )an #n!res an! t$ere(ore $a! been in e4istence (or all o( si4teen 'ears ,$en #elae' vs. Auditor (eneral ,as &rom%lgate!. #n! vario%s governmental acts t$ro%g$o%t t$e 'ears all in!icate t$e )tateHs recognition an! ac+no,le!gment o( t$e e4istence t$ereo(. For instance %n!er #O 11 aboveDmentione! t$e M%nici&alit' o( #licia ,as covere! b' t$e 7t$
1C

M%nici&al Circ%it Co%rt o( #liciaDMabini (or t$e &rovince o( Bo$ol. Li+e,ise %n!er t$e Or!inance a&&en!e! to t$e 1887 Constit%tion t$e M%nici&alit' o( #licia is one o( t,ent' m%nici&alities com&rising t$e 2$ir! District o( Bo$ol. *nasm%c$ as res&on!ent m%nici&alit' o( #licia is similarl' sit%ate! as t$e m%nici&alit' o( )an #n!res it s$o%l! li+e,ise bene(it (rom t$e e((ects o( )ec 00/ ;!< o( t$e LGC an! s$o%l! $ence(ort$ be consi!ere! as a reg%lar de 0ure m%nici&alit'. =olitical %nits !irectl' a((ecte!: resi!ents o( t$e &olitical entit' ,$o ,o%l! be economicall' !islocate! b' t$e se&aration o( a &ortion t$ereo( L %nits ,$ic$ ,o%l! &artici&ate in t$e &lebiscite. 'an v. COM%L%C /supra- see p.51 Miran a v. Aguirre Facts: *n 1880 -# 77/5 converting t$e m%nici&alit' o( )antiago to an in!e&en!ent com&onent cit' ,as signe! into la, an! t$erea(ter rati(ie! in a &lebiscite. Fo%r 'ears later -# 8C/8 ,$ic$ amen!e! -# 77/5 ,as enacte! c$anging t$e stat%s o( )antiago (rom an *CC to a com&onent cit'. =etitioners assail t$e constit%tionalit' o( -# 8C/8 beca%se it !oes not &rovi!e (or s%bmitting t$e la, (or rati(ication b' t$e &eo&le o( )antiago Cit' in a &ro&er &lebiscite. *ss%es: 1. 6ON &etitioners $ave stan!ing. :3). -%le: constit%tionalit' o( la, can be c$allenge! b' one ,$o ,ill s%stain a !irect in9%r' as a res%lt o( its en(orcement Miran!a ,as ma'or ,$en $e (ile! t$e &etition $is rig$ts ,o%l! $ave been greatl' a((ecte!. Ot$er &etitioners are resi!ents an! voters o( )antiago. 1. 6ON &etition involves a &olitical .%estion. NO. =W: concerne! ,it$ iss%es !e&en!ent %&on t$e ,is!om not legalit' o( a &artic%lar meas%re 7%sticiable iss%e: im&lies a given rig$t legall' !eman!able an! en(orceable an act or omission violative o( s%c$ rig$t an! a reme!' grante! an! sanctione! b' la, (or sai! breac$ o( rig$t Case at barL9%sticiable. 6ON &etitioners $ave rig$t to a &lebiscite is a legal .%estion. 6ON la,s &asse! b' Congress com&l' ,it$ t$e re.%irements o( t$e Consti &ose .%estions t$at t$is co%rt alone can !eci!e. 1. 6ON t$e c$ange involve! an' creation !ivision merger abolition or s%bstantial alteration o( bo%n!aries. :3). 6. 7O, a plebiscite is necessar# consi ering the change "as a mere reclassi!ication !rom )CC to CC. 8%(. # close anal'sis o( t$e sai! constit%tional &rovision ,ill reveal t$at t$e creation !ivision merger abolition or s%bstantial alteration o( bo%n!aries o( LG@s involve a common denominator 1 material c$ange in t$e &olitical an! economic rig$ts o( t$e
$ilas v. Cit# o! Manila /supra- see p.41 Pa illa v. COM%L%C Facts: # &lebiscite in t$e matter o( t$e creation o( t$e M%nici&alit' o( 2%la'DNaDL%&a ,as $el! in t$e m%nici&alit' o( Labo &%rs%ant to -# 71CC an! t$e Constit%tion. Onl' /885 (avore! its creation ,$ile 118 vote! against it. 2$e =lebiscite Boar! o( Canvassers !eclare! t$e re9ection an! !isa&&roval o( t$e in!e&en!ent M%nici&alit' o( 2NL. Gov. =a!illa see+s to set asi!e t$e &lebiscite an! &ra's t$at a ne, &lebiscite be %n!erta+en beca%se t$e &revio%s one ,as a com&lete (ail%re an! t$e res%lts obtaine! ,ere invali! an! illegal beca%se t$e &lebiscite s$o%l! $ave been con!%cte! onl' in t$e &olitical %nits a((ecte! i.e. t$e 1/ baranga's com&rising 2NL to t$e e4cl%sion o( t$e remaining areas o( t$e mot$er %nit. *ss%e: 6ON t$e &lebiscite con!%cte! is vali!. :3). =a!illa>s contention t$at t$e 2an r%ling $as been s%&erse!e! b' t$e rati(ication o( t$e 1887 Constit%tion $ence reinstating t$e =are!es r%ling is %ntenable. Ol! la,: E&olitical %nit or %nitsF Ne, la,: E&olitical %nitsF 2$e !eletion o( t$e ,or!s E%nit orF !oes not a((ect t$e 2an r%ling. Concom !ebates: Davi!e as+e! (or !eletion o( E%nit orF beca%se t$e &lebiscite is to be con!%cte! in all %nits a((ecte!.
1G

LG@s !irectl' a((ecte! as ,ell as t$e &eo&le t$erein. *t is &recisel' (or t$is reason t$at t$e Constit%tion re.%ires t$e a&&roval o( t$e &eo&le "in t$e &olitical %nits directly a((ecte!." )ec 15 #rt J a!!resse! t$e %n!esirable &ractice in t$e &ast ,$ereb' LG@s ,ere create! abolis$e! merge! or !ivi!e! on t$e basis o( t$e vagaries o( &olitics an! not o( t$e ,el(are o( t$e &eo&le. 2$%s t$e consent o( t$e &eo&le o( t$e LG@ !irectl' a((ecte! ,as re.%ire! to serve as a c$ec+ing mec$anism to an' e4ercise o( legislative &o,er creating !ivi!ing abolis$ing merging or altering t$e bo%n!aries o( LG@s. *t is one instance ,$ere t$e &eo&le in t$eir sovereign ca&acit' !eci!e on a matter t$at a((ects t$em S !irect !emocrac' o( t$e &eo&le as o&&ose! to !emocrac' t$r% &eo&leHs re&resentatives. 2$is &lebiscite re.%irement is also in accor! ,it$ t$e &$iloso&$' o( t$e Constit%tion granting more a%tonom' to LG@s. 2$e c$anges t$at ,ill res%lt (rom t$e !o,ngra!ing o( t$e cit' o( )antiago (rom an in!e&en!ent com&onent cit' to a com&onent cit' are man' an! cannot be c$aracteriBe! as ins%bstantial. 2$e in!e&en!ence o( t$e cit' as a &olitical %nit ,ill be !iminis$e!: X 2$e cit' ma'or ,ill be &lace! %n!er t$e a!ministrative s%&ervision o( t$e &rovincial governor. X 2$e resol%tions an! or!inances o( t$e cit' co%ncil o( )antiago ,ill $ave to be revie,e! b' t$e =rovincial Boar! o( *sabela. X 2a4es t$at ,ill be collecte! b' t$e cit' ,ill no, $ave to be s$are! ,it$ t$e &rovince. 6$en -# 77/5 %&gra!e! t$e stat%s o( )antiago Cit' (rom a m%nici&alit' to an in!e&en!ent com&onent cit' it re.%ire! t$e a&&roval o( its &eo&le t$r% a &lebiscite calle! (or t$e &%r&ose. 2$ere is neit$er r$'me nor reason ,$' t$is &lebiscite s$o%l! not be calle! to !etermine t$e ,ill o( t$e &eo&le o( )antiago Cit' ,$en -# 8C/8 !o,ngra!es t$e stat%s o( t$eir cit'. 2$ere is more reason to cons%lt t$e &eo&le ,$en a la, s%bstantiall' !iminis$es t$eir rig$t. -%le ** #rt G &aragra&$ ;(< ;1< o( t$e *--s o( t$e LGC is in accor! ,it$ t$e Constit%tion ,$en it &rovi!es t$at no creation conversion !ivision merger abolition or s%bstantial alteration o( bo%n!aries o( LG@) s$all ta+e e((ect %nless a&&rove! b' a ma9orit' o( t$e votes cast in a &lebiscite calle! (or t$e &%r&ose in t$e LG@ or LG@s a((ecte!. 2$e &lebiscite s$all be con!%cte! b' t$e Commission on 3lections ;COM3L3C< ,it$in one $%n!re! t,ent' ;1/5< !a's (rom t$e e((ectivit' o( t$e la, or or!inance &rescribing s%c$ action %nless sai! la, or or!inance (i4es anot$er !ate. 2$e r%les cover all conversions ,$et$er %&,ar! or !o,n,ar! in c$aracter so long as t$e' res%lt in a material c$ange in t$e LG@ !irectl' a((ecte! es&eciall' a c$ange in t$e &olitical an! economic rig$ts o( its &eo&le. 'obias v. Abalos Facts: =rior to t$e enactment o( -# 7G7C ;#n #ct Converting t$e M%nici&alit' o( Man!al%'ong into a Hig$l' @rbaniBe! Cit' to be +no,n as t$e Cit' o( Man!al%'ong< t$e m%nici&alities o( Man!al%'ong an! )an 7%an belonge! to onl' one legislative !istrict. =%rs%ant to t$e LGC a &lebiscite ,as $el! ,$ere t$e &eo&le o( Man!al%'ong ,ere as+e! ,$et$er t$e' a&&rove! o( t$e conversion o( t$e M%nici&alit' o( Man!al%'ong into a $ig$l' %rbaniBe! cit'. 2$e t%rno%t at t$e &lebiscite ,as onl' 10.01Y o( t$e voting &o&%lation. Nevert$eless 18 G/1 vote! "'es" ,$ereas 7 811 vote! "no." B' virt%e o( t$ese res%lts -# 7G7C ,as !eeme! rati(ie! an! in e((ect. =etitioners invo+ing t$eir rig$ts as ta4&a'ers an! as resi!ents o( Man!al%'ong come be(ore t$e co%rt to assail t$e constit%tionalit' o( -# 7G7C. *ss%e: 6ON -# 7G7C %nconstit%tional. :3). 1. -# 7G7C contravenes t$e "one s%b9ectDone bill" r%le. )ec. /G;1< Consti: 3ver' bill &asse! b' t$e Congress s$all embrace onl' one s%b9ect ,$ic$ s$all be e4&resse! in t$e title t$ereo(. =etitioners: incl%sion o( t$e assaile! )ection 08 in t$e s%b9ect la, res%lte! in t$e latter embracing t,o &rinci&al s%b9ects: ;1< t$e conversion o(
17

Man!al%'ong into a $ig$l' %rbaniBe! cit'A an! ;/< t$e !ivision o( t$e congressional !istrict o( )an 7%an?Man!al%'ong into t,o se&arate !istricts. t$e stat%tor' conversion o( Man!al%'ong into a $ig$l' %rbaniBe! cit' ,it$ a &o&%lation o( not less t$an t,o $%n!re! (i(t' t$o%san! in!%bitabl' or!ains com&liance ,it$ t$e "one cit'Done re&resentative" &roviso in t$e Constit%tion: 3ac$ cit' ,it$ a &o&%lation o( at least t,o $%n!re! (i(t' t$o%san! or eac$ &rovince s$all $ave at least one re&resentative" ;#rticle K* )ection C;1< Constit%tion<. Hence it is in com&liance ,it$ t$e a(orestate! constit%tional man!ate t$at t$e creation o( a se&arate congressional !istrict (or t$e Cit' o( Man!al%'ong is !ecree! %n!er #rticle K*** )ection 08 o( -..#. No. 7G7C. 2$e creation o( a se&arate congressional !istrict (or Man!al%'ong is not a s%b9ect se&arate an! !istinct (rom t$e s%b9ect o( its conversion into a $ig$l' %rbaniBe! cit' b%t is a nat%ral an! logical conse.%ence o( its conversion into a $ig$l' %rbaniBe! cit'. Keril' t$e title o( -.#. No. 7G7C "#n #ct Converting t$e M%nici&alit' o( Man!al%'ong *nto a Hig$l' @rbaniBe! Cit' o( Man!al%'ong" necessaril' incl%!es an! contem&lates t$e s%b9ect treate! %n!er )ection 08 regar!ing t$e creation o( a se&arate congressional !istrict (or Man!al%'ong. Sumulong v. Comelec! t$e constit%tional re.%irement as no, e4&resse! in #rticle K* )ection /G;1< "s$o%l! be given a &ractical rat$er t$an a tec$nical constr%ction. *t s$o%l! be s%((icient com&liance ,it$ s%c$ re.%irement i( t$e title e4&resses t$e general s%b9ect an! all t$e &rovisions are germane to t$at general s%b9ect." 2idasan v. Comelec! O( co%rse t$e Constit%tion !oes not re.%ire Congress to em&lo' in t$e title o( an enactment lang%age o( s%c$ &recision as to mirror (%ll' in!e4 or catalog%e all t$e contents an! t$e min%te !etails t$erein. *t s%((ices i( t$e title s$o%l! serve t$e &%r&ose o( t$e constit%tional !eman! t$at it in(orm t$e legislators t$e &ersons intereste! in t$e s%b9ect o( t$e bill an! t$e &%blic o( t$e nat%re sco&e an! conse"uences o( t$e &ro&ose! la, an! its o&eration" 1. 6ON t$e !ivision o( )an 7%an an! Man!al%'ong into se&arate congressional !istricts %n!er )ection 08 o( t$e assaile! la, res%lting in an increase in t$e com&osition o( t$e Ho%se o( -e&resentatives be'on! t$at &rovi!e! in #rticle K* )ec. C;1< o( t$e Constit%tion. )ec. C;1<. 2$e Ho%se o( -e&resentatives s$all be com&ose! o( not more t$an t,o $%n!re! an! (i(t' members %nless ot$er,ise (i4e! b' la, ,$o s$all be electe! (rom legislative !istricts a&&ortione! among t$e &rovinces cities an! t$e Metro&olitan Manila area in accor!ance ,it$ t$e n%mber o( t$eir res&ective in$abitants an! on t$e basis o( a %ni(orm an! &rogressive ratio an! t$ose ,$o as &rovi!e! b' la, s$all be electe! t$ro%g$ a &art' list s'stem o( registere! national regional an! sectoral &arties or organiBations. Limit o( /C5 members is not absol%te. 2$e Constit%tion clearl' &rovi!es t$at t$e Ho%se o( -e&resentatives s$all be com&ose! o( not more t$an /C5 members "%nless ot$er,ise &rovi!e! b' la,." 2$e inesca&able im&ort o( t$e latter cla%se is t$at t$e &resent com&osition o( Congress ma' be increase! i( Congress itsel( so man!ates t$ro%g$ a legislative enactment. 2$ere(ore t$e increase in congressional re&resentation man!ate! b' -# 7G7C is not %nconstit%tional. 1. 6ON t$e !ivision ,as ma!e &%rs%ant to a cens%s s$o,ing t$at t$e s%b9ect m%nici&alities $ave attaine! t$e minim%m &o&%lation re.%irements. NO. =etitioners: t$ere is no mention in t$e assaile! la, o( an' cens%s to s$o, t$at Man!al%'ong an! )an 7%an $a! eac$ attaine! t$e minim%m re.%irement o( /C5 555 in$abitants to 9%sti(' t$eir se&aration into t,o legislative !istricts. )%c$ !oes not s%((ice to stri+e !o,n t$e vali!it' o( -# 7G7C. 2$e sai! #ct en9o's t$e &res%m&tion o( $aving &asse! t$ro%g$ t$e reg%lar congressional &rocesses incl%!ing !%e consi!eration b' t$e members o( Congress o( t$e minim%m re.%irements (or t$e establis$ment o( se&arate legislative
18

!istricts. #t an' rate it is not re.%ire! t$at all la,s emanating (rom t$e legislat%re m%st contain all relevant !ata consi!ere! b' Congress in t$e enactment o( sai! la,s. 6ON )ection 08 $as t$e e((ect o( &reem&ting t$e rig$t o( Congress to rea&&ortion legislative !istricts. NO. )ec. C;0<: 6it$in t$ree 'ears (ollo,ing t$e ret%rn o( ever' cens%s t$e Congress s$all ma+e a rea&&ortionment o( legislative !istricts base! on t$e stan!ar! &rovi!e! in t$is section. =etitioners: )ection 08 o( -# 7G7C &reem&ts t$e rig$t o( Congress to rea&&ortion legislative !istricts arg%ment bor!ers on t$e abs%r! since &etitioners overloo+ t$e glaring (act t$at it ,as Congress itsel( ,$ic$ !ra(te! !eliberate! %&on an! enacte! t$e assaile! la, incl%!ing )ection 08 t$ereo(. Congress cannot &ossibl' &reem&t itsel( on a rig$t ,$ic$ &ertains to itsel(. 6ON t$e &eo&le o( )an 7%an s$o%l! $ave been ma!e to &artici&ate in t$e &lebiscite on -.#. No. 7G7C as t$e same involve! a c$ange in t$eir legislative !istrict. 2$e contention is bere(t o( merit since t$e &rinci&al s%b9ect involve! in t$e &lebiscite ,as t$e conversion o( Man!al%'ong into a $ig$l' %rbaniBe! cit'. 2$e matter o( se&arate !istrict re&resentation ,as onl' ancillar' t$ereto. 2$%s t$e in$abitants o( )an 7%an ,ere &ro&erl' e4cl%!e! (rom t$e sai! &lebiscite as t$e' $a! not$ing to !o ,it$ t$e c$ange o( stat%s o( neig$boring Man!al%'ong. 6ON t$e s%b9ect la, $as res%lte! in "gerr'man!ering " ,$ic$ is t$e &ractice o( creating legislative !istricts to (avor a &artic%lar can!i!ate or &art'. NO. #s correctl' observe! b' t$e )olicitor General it s$o%l! be note! t$at -e&. -onal!o Zamora t$e a%t$or o( t$e assaile! la, is t$e inc%mbent re&resentative o( t$e (ormer )an 7%an?Man!al%'ong !istrict $aving consistentl' ,on in bot$ localities. B' !ivi!ing )an 7%an?Man!al%'ong -e&. ZamoraHs constit%enc' $as in (act been !iminis$e! ,$ic$ !evelo&ment co%l! $ar!l' be consi!ere! as (avorable to $im. Cruz v. Paras Facts: Or!inance 80 ,as &asse! b' t$e M%nici&alit' o( Boca%e. =etitioners are b%siness o,ners ,$o $a! been &revio%sl' iss%e! licenses b' t$e M%nici&al Ma'or o( Boca%e *ss%es: 1. 6ON a m%nici&alit' ma' rel' on its &olice &o,er to 9%sti(' t$e enactment o( t$e assaile! or!inance. NO. =olice &o,er grante! to m%nici&al cor&orations: "General &o,er o( co%ncil to enact or!inances an! ma+e reg%lations.D 2$e m%nici&al co%ncil s$all enact s%c$ or!inances an! ma+e s%c$ reg%lations not re&%gnant to la, as ma' be necessar' to carr' into e((ect an! !isc$arge t$e &o,ers an! !%ties con(erre! %&on it b' la, an! s%c$ as s$all seem necessar' an! &ro&er to &rovi!e (or t$e $ealt$ an! sa(et' &romote t$e &ros&erit' im&rove t$e morals &eace goo! or!er com(ort an! convenience o( t$e m%nici&alit' an! t$e in$abitants t$ereo( an! (or t$e &rotection o( &ro&ert' t$erein." @) v. #ben!an: #n or!inance enacte! b' virt%e o( &olice &o,er is vali! %nless it contravenes t$e (%n!amental la, an act o( t$e legislat%re against &%blic &olic' or is %nreasonable &artial !iscriminating or in !erogation o( a common rig$t. @) v. )alaveria: 2$e general ,el(are cla%se $as t,o branc$es: 1. attac$es itsel( to t$e main tr%n+ o( m%nici&al a%t$orit' an! relates to s%c$ or!inances an! reg%lations as ma' be necessar' to carr' into e((ect an! !isc$arge t$e &o,ers an! !%ties con(erre! %&on t$e m%nici&al co%ncil b' la,. /.*t a%t$oriBes s%c$ or!inances as s$all seem necessar' an! &ro&er to &rovi!e (or t$e $ealt$ an! sa(et' &romote t$e &ros&erit' im&rove t$e morals &eace goo! or!er com(ort an! convenience o( t$e m%nici&alit' an! t$e in$abitants t$ereo( an! (or t$e &rotection o( &ro&ert' t$erein. *t is a general r%le t$at or!inances &asse! b' virt%e o( t$e im&lie! &o,er (o%n! in t$e general ,el(are cla%se m%st be reasonable consonant ,it$ t$e general &o,ers an! &%r&oses o( t$e cor&oration an! not inconsistent ,it$ t$e la,s or &olic' o( t$e )tate. *( nig$t cl%bs ,ere merel' t$en reg%late! an! not &ro$ibite! certainl' t$e assaile! or!inance ,o%l!
1.
1.
1.
*ela
18

&ass t$e test o( vali!it'. QQreasonableness consonance ,it$ t$e general &o,ers an! &%r&oses o( m%nici&al cor&orations consistenc' ,it$ t$e la,s or &olic' o( t$e )tate. *t is clear t$at in t$e g%ise o( a &olice reg%lation t$ere ,as in t$is instance a clear invasion o( &ersonal or &ro&ert' rig$ts &ersonal in t$e case o( t$ose in!ivi!%als !esiro%s o( &atroniBing t$ose nig$t cl%bs an! &ro&ert' in terms o( t$e investments ma!e an! salaries to be earne! b' t$ose t$erein em&lo'e!. 1. 6ON a m%nici&alit' $as no a%t$orit' to &ro$ibit a la,(%l b%siness occ%&ation or calling. NO. -# 818: t$e m%nici&al or cit' boar! or co%ncil o( eac$ c$artere! cit' s$all $ave t$e &o,er to reg%late b' or!inance t$e establis$ment maintenance an! o&eration o( nig$t cl%bs cabarets !ancing sc$ools &avilions coc+&its bars saloons bo,ling alle's billiar! &ools an! ot$er similar &laces o( am%sement ,it$in its territorial 9%ris!iction: . . . 2$en on Ma' /1 18C0 t$e (irst section ,as amen!e! to incl%!e not merel' "t$e &o,er to reg%late b%t li+e,ise "&ro$ibit . . ." 2$e title $o,ever remaine! t$e same an! t$e e4act ,or!ing ,as (ollo,e!. 2$e &o,er grante! remains t$at o( reg%lation not &ro$ibition. 2$ere is t$%s s%&&ort (or t$e vie, a!vance! b' &etitioners t$at to constr%e -# 818 as allo,ing t$e &ro$ibition o( t$e o&eration o( nig$t cl%bs ,o%l! give rise to a constit%tional .%estion. 2$ere is a ,i!e ga& bet,een t$e e4ercise o( a reg%lator' &o,er "to &rovi!e (or t$e $ealt$ an! sa(et' &romote t$e &ros&erit' im&rove t$e morals " in t$e lang%age o( t$e #!ministrative Co!e s%c$ com&etence e4ten!ing to all "t$e great &%blic nee!s " an! to inter!ict an' calling occ%&ation or enter&rise. *t is clear t$at m%nici&al cor&orations cannot &ro$ibit t$e o&eration o( mig$t cl%bs. 2$e' ma' be reg%late! b%t not &revente! (rom carr'ing on t$eir b%siness. 'echnolog# *evelopers v. CA Facts: 2D receive! a letter (rom acting ma'or Cr%B or!ering t$e (%ll cessation o( t$e o&eration o( its &lant locate! at G%'ong )ta. Maria B%lacan %ntil (%rt$er or!er. 2$e letter li+e,ise re.%este! its &lant manager to bring ,it$ $im to t$e o((ice o( t$e ma'or t$e (ollo,ing: a< B%il!ing &ermitA b< Ma'orHs &ermitA c< -egion ***D =oll%tion o( 3nvironment an! Nat%ral -eso%rces #ntiD=oll%tion =ermit. *n com&liance ,it$ sai! %n!erta+ing &etitioner commence! to sec%re "-egion ***DDe&artment o( 3nvironmental an! Nat%ral -eso%rces #ntiD=oll%tion =ermit " alt$o%g$ among t$e &ermits &revio%sl' sec%re! &rior to t$e o&eration o( &etitionerHs &lant ,as a "2em&orar' =ermit to O&erate #ir =oll%tion *nstallation" iss%e! b' t$e t$en National =oll%tion Control Commission ;no, 3nvironmental Management B%rea%< an! is no, at a stage ,$ere t$e 3nvironmental Management B%rea% is tr'ing to !etermine t$e correct +in! o( antiD&oll%tion !evise to be installe! as &art o( &etitionerHs re.%est (or t$e rene,al o( its &ermit. 2DHs attention $aving been calle! to its lac+ o( ma'orHs &ermit it sent its re&resentatives to t$e o((ice o( t$e ma'or to sec%re t$e same b%t ,ere not entertaine!. On #&ril G 1888 ,it$o%t &revio%s an! reasonable notice %&on &etitioner res&on!ent acting ma'or or!ere! t$e M%nici&alit'Hs station comman!er to &a!loc+ t$e &remises o( &etitionerHs &lant t$%s e((ectivel' ca%sing t$e sto&&age o( its o&eration. -2C: action (or certiorari &ro$ibition man!am%s ,it$ &reliminar' in9%nction. Clos%re or!er ,as iss%e! in grave ab%se o( !iscretion. 7%!ge iss%e! o( t$e ,rit o( &reliminar' man!ator' in9%nction. M-: -2C iss%e! an or!er ;a< setting asi!e t$e or!er ,$ic$ grante! a 6rit o( =reliminar' Man!ator' *n9%nction an! ;b< !issolving t$e ,rit conse.%entl' iss%e!. C#: certiorari an! &ro$ibition ,it$ &reliminar' in9%nction. *n !%e co%rse t$e &etition ,as !enie! (or lac+ o( merit. M-: !enie!. *ss%e: 6ON t$e a&&ellate co%rt committe! a grave ab%se o( !iscretion in ren!ering its .%estion !ecision an! resol%tion. NO. 2$e a%t$orit' o( t$e local e4ec%tive to &rotect t$e comm%nit' (rom &oll%tion is t$e center o( t$is controvers'. 2$e (ollo,ing circ%mstances militate against t$e maintenance o( t$e ,rit o( &reliminar' in9%nction so%g$t b' &etitioner:
/5

1. No ma'orHs &ermit $a! been sec%re!. 6$ile it is tr%e t$at t$e matter o( !etermining ,$et$er t$ere is a &oll%tion o( t$e environment t$at re.%ires control i( not &ro$ibition o( t$e o&eration o( a b%siness is essentiall' a!!resse! to t$e t$en National =oll%tion Control Commission o( t$e Ministr' o( H%man )ettlements no, t$e 3nvironmental Management B%rea% o( t$e De&artment o( 3nvironment an! Nat%ral -eso%rces it m%st be recogniBe! t$at t$e ma'or o( a to,n $as as m%c$ res&onsibilit' to &rotect its in$abitants (rom &oll%tion an! b' virt%re o( $is &olice &o,er $e ma' !en' t$e a&&lication (or a &ermit to o&erate a b%siness or ot$er,ise close t$e same %nless a&&ro&riate meas%res are ta+en to control an!?or avoi! in9%r' to t$e $ealt$ o( t$e resi!ents o( t$e comm%nit' (rom t$e emissions in t$e o&eration o( t$e b%siness. 2$e #cting Ma'or in a letter o( Febr%ar' 1G 1888 calle! t$e attention o( &etitioner to t$e &oll%tion emitte! b' t$e (%mes o( its &lant ,$ose o((ensive o!or "not onl' &oll%te t$e air in t$e localit' b%t also a((ect t$e $ealt$ o( t$e resi!ents in t$e area " so t$at &etitioner ,as or!ere! to sto& its o&eration %ntil (%rt$er or!ers an! it ,as re.%ire! to bring its &ermits ;see (acts< 2$is action o( t$e #cting Ma'or ,as in res&onse to t$e com&laint o( t$e resi!ents o( Baranga' G%'ong )ta. Maria B%lacan !irecte! to t$e =rovincial Governor t$ro%g$ c$annels. 2$e clos%re or!er o( t$e #cting Ma'or ,as iss%e! onl' a(ter an investigation ,as ma!e b' Marivic G%ina ,$o in $er re&ort o( December 8 1888 observe! t$at t$e (%mes emitte! b' t$e &lant o( &etitioner goes !irectl' to t$e s%rro%n!ing $o%ses an! t$at no &ro&er air &oll%tion !evice $as been installe!. =etitioner (aile! to &ro!%ce a b%il!ing &ermit (rom t$e m%nici&alit' o( )ta. Maria b%t instea! &resente! a b%il!ing &ermit iss%e! b' an o((icial o( Ma+ati on Marc$ G 1887. G. 6$ile &etitioner ,as able to &resent a tem&orar' &ermit to o&erate b' t$e t$en National =oll%tion Control Commission on December 1C 1887 t$e &ermit ,as goo! onl' %& to Ma' /C 1888. =etitioner $a! not e4erte! an' e((ort to e4ten! or vali!ate its &ermit m%c$ less to install an' !evice to control t$e &oll%tion an! &revent an' $aBar! to t$e $ealt$ o( t$e resi!ents o( t$e comm%nit'. 2D: $%ge investment. )C: s%c$ is concomitant ,it$ t$e nee! to &romote investment an! contrib%te to t$e gro,t$ o( t$e econom' is t$e e.%all' essential im&erative o( &rotecting t$e $ealt$ na' t$e ver' lives o( t$e &eo&le (rom t$e !eleterio%s e((ect o( t$e &oll%tion o( t$e environment. Chua 9uat v. CA Facts: Man%el @' an! )ons *nc. re.%este! t$e Cit' 3ngineer an! B%il!ing O((icial o( Manila to con!emn t$e !ila&i!ate! str%ct%res locate! at 1/71 to 1/77 =e!ro Gil )t. an! 1CC1 to 1CC7 =aB )t. =aco Manila all occ%&ie! b' &etitioners. Notices o( con!emnation ,ere iss%e! stating t$at t$e s%b9ect b%il!ings ,ere (o%n! to be in !angero%s con!ition an! t$ere(ore con!emne! s%b9ect to t$e con(irmation o( t$e Ma'or as re.%ire! b' )ection /7G o( t$e Com&ilation o( Or!inances o( t$e Cit' o( Manila. 2$e or!ers ,ere base! on t$e ins&ection re&orts ma!e b' #rc$itect Oscar D. #n!res an! t$e Memoran!%mD-e&orts ma!e b' t$e 3val%ation Committee o( t$e O((ice o( t$e Cit' 3ngineer ,$ic$ all s$o,e! t$at t$e s%b9ect b%il!ings s%((er (rom str%ct%ral !eterioration b' more t$an C5Y an! as m%c$ as 85Y. Civil 3ngineer -om%lo C. Molas a &rivate &ractitioner ins&ecte! t$e abovementione! str%ct%res %&on t$e re.%est o( &etitioners $erein. *n $is eval%ation re&ort $e state! t$at alt$o%g$ t$e b%il!ings are ol! t$e' are still str%ct%rall' so%n! an! $ave a remaining economic li(e o( at least eig$t 'ears. 2$ree mont$s a(ter t$e notices o( con!emnation ,ere iss%e! &etitioners (ormall' &roteste! against sai! notices o( con!emnation on t$e gro%n! t$at t$e b%il!ings are still in goo! &$'sical con!ition an! are str%ct%rall' so%n! base! on t$e abovementione! certi(ication o( Civil 3ngineer -om%lo C. Molas.
/.
1.
0.
C.
/1

On /G #&ril 1881 Maria Gamboa one o( t$e &etitioners $erein ,as in(orme! o( t$e iss%ance b' t$e Cit' 3ngineer o( t$e !emolition or!er ,it$ res&ect to t$e b%il!ing locate! at 1CGC =aB )t. =aco Manila an! ,as tol! to vacate t$e &remises ,it$in 1C !a's (rom notice. On / Ma' 1881 &etitioners (ile! t$e instant =etition (or =ro$ibition ,it$ =reliminar' *n9%nction an!?or -estraining Or!er against Cit' Ma'or -amon Bagatsing Cit' 3ngineer an! B%il!ing O((icer -om%lo !el -osario an! Man%el @' an! )ons *nc. &ra'ing t$at a restraining or!er or &reliminar' in9%nction be iss%e! en9oining res&on!ents (rom &rocee!ing ,it$ t$e anno%nce! !emolition o( t$e s%b9ect b%il!ings t$is &etition be given !%e co%rse an! a(ter $earing res&on!ents be &ro$ibite! (rom !emolis$ing sai! b%il!ings. 2$e' allege! a grave ab%se o( !iscretion amo%nting to lac+ o( 9%ris!iction an! t$at t$ere is no ot$er &lain s&ee!' an! a!e.%ate reme!'. 2$e Ma'or con(irme! t$e rest o( t$e con!emnation or!ers iss%e! b' t$e res&on!ent Cit' 3ngineer. Cit' Ma'or an! Cit' 3ngineer: &etition s$o%l! be !ismisse! on t$e (ollo,ing gro%n!s: ;a< t$at it involves .%estions o( (acts ,$ic$ s$o%l! be ventilate! be(ore t$e -egional 2rial Co%rt o( ManilaA ;b< t$e s%b9ect b%il!ings ,ere con!emne! an! or!ere! remove! a(ter it ,as establis$e! t$at t$e' $a! s%((ere! (rom !e(ects or !eterioration t$ereb' &osing &erils to t$e lives an! limbs not onl' o( &etitioners b%t also to t$e &%blic in generalA ;c< t$e &o,er to con!emn b%il!ings an! str%ct%res in t$e Cit' o( Manila (alls ,it$in t$e e4cl%sive !omain o( t$e Cit' 3ngineer &%rs%ant to )ections /7C an! /7G o( its Com&ilation o( Or!inances ;also -evise! Or!inances 1G55<A ;!< t$e &o,er to con!emn an! remove b%il!ings an! str%ct%res is an e4ercise o( t$e &olice &o,er grante! t$e Cit' o( Manila to &romote &%blic sa(et'A an! ;e< a!ministrative !ecisions (alling ,it$in t$e e4ec%tive 9%ris!iction cannot be set asi!e b' co%rts o( 9%stice e4ce&t on &roo( o( grave ab%se o( !iscretion (ra%! or error o( la,. Man%el @' an! )ons *nc: &etition is &remat%re %nreasonable an! !eserves no consi!eration as &etitioners $ave not e4$a%ste! rea!il'Davailable a!ministrative reme!ies an! t$at t$e vali!it' o( t$e .%estione! con!emnation an! !emolition or!ers entails .%estions o( (acts not entertainable in t$is &etition. *t alleges t$at t$e con!emnation or!ers ,ere not imme!iatel' e4ec%tor' as t$e (in!ing o( t$e Cit' 3ngineer?B%il!ing O((icial is still s%b9ect to t$e a&&roval o( t$e Ma'or &er )ection /7G o( t$e Com&ilation o( Or!inances o( t$e Cit' o( Manila. Moreover %n!er )ection C.1 -%le K** o( t$e *m&lementing -%les an! -eg%lations o( =.D. No. 158G t$e o,ner o( a b%il!ing ma' a&&eal to t$e )ecretar' o( =%blic 6or+s an! Comm%nications ,$ose !ecision is (inal t$e (in!ing or !eclaration o( t$e B%il!ing O((icial an! as+ t$at a reD ins&ection or reDinvestigation o( t$e b%il!ing or str%ct%re be ma!eA (or not availing o( t$is reme!' &etitioners (aile! to e4$a%st a!ministrative reme!ies. *ss%e: 6ON t$e ma'or an! cit' engineer committe! grave ab%se o( !iscretion amo%nting to lac+ o( 9%ris!iction in iss%ing t$e con!emnation or!ers. NO. *t is &atentl' obvio%s t$at &etitioners $ave no vali! grievance (or t$e reme!' o( certiorari %n!er -%le GC o( t$e -%les o( Co%rt to be available to t$em. *t is e4&licitl' clear (rom )ection 1 o( -%le GC o( t$e -%les o( Co%rt t$at (or certiorari to be available: ;a< a trib%nal boar! or o((ice e4ercising 9%!icial (%nction acte! ,it$o%t or in e4cess o( its or $is 9%ris!iction or ,it$ grave ab%se o( !iscretion an! ;b< t$at t$ere is no a&&eal nor an' &lain s&ee!' an! a!e.%ate reme!' in t$e or!inar' co%rse o( la,. =etitioners (aile! to s$o, t$e &resence o( bot$ elements. 2$e &o,er to con!emn b%il!ings an! str%ct%res in t$e Cit' o( Manila (alls ,it$in t$e e4cl%sive 9%ris!iction o( t$e Cit' 3ngineer ,$o is at t$e same time t$e B%il!ing O((icial ;)ec. /5G =.D. 158G<. )ections /7C an! /7G o( t$e Com&ilation o( Or!inances o( t$e Cit' o( Manila ;also -evise! Or!inances 1G55< &rovi!e: ")3C. /7C. Deterioration an! De(ects. #ll b%il!ings or &arts o( b%il!ings ,$ic$ s$o, !e(ects in an' essential &arts s$all be re&aire! an! &%t in sa(e con!ition at once or i( t$e !eterioration be greater t$an (i(t' &er cent%m o( t$e val%e o( t$e b%il!ing as estimate! b' t$e cit' engineer t$e' s$all be remove!. )3C. /7G. Con!emnation =rocee!ings. 6$enever in t$e 9%!gment o( t$e Cit' 3ngineer an' b%il!ing or &ortion o( b%il!ing $as been !amage! b' an' ca%se to s%c$ an e4tent as to be !angero%s (or %se $e ma' con!emn t$e same an! s$all imme!iatel'
//

noti(' t$e o,ner an! t$e Ma'or o( $is action. *( t$e o,ner or $is agent be not ,illing to abi!e b' t$%s or!er o( con!emnation $e ma' ma+e (ormal ob9ection ,it$in t$e &erio! o( seven !a's (ollo,ing s%c$ noti(ication. 2$e Ma'or s$all $ear t$e o,ner or $is agent an! $is e4&erts an! also t$e cit' engineer !eci!ing t$e case on t$e evi!ence &resente!. *( t$e Ma'or con(irms t$e action o( t$e cit' engineer t$e o,ner or $is agent s$all imme!iatel' &rocee! to remove t$e b%il!ing ,it$in (i(teen !a's (rom t$e !ate on ,$ic$ $e ,as noti(ie! o( s%c$ (inal action. )$o%l! t$e o,ner or $is agent not com&l' ,it$ t$e !ecision o( t$e Ma'or t$e b%il!ing s$all be remove! at $is e4&ense an! t$e cit' ,ill &rocee! to recover against $im (or t$e amo%nt e4&en!e!." )ection /1C o( =.D. 158G ot$er,ise +no,n as t$e National B%il!ing Co!e also states t$e a%t$orit' o( t$e B%il!ing O((icial ,it$ res&ect to !angero%s b%il!ings to ,it: "6$en an' b%il!ing or str%ct%re is (o%n! or !eclare! to be !angero%s or r%ino%s t$e B%il!ing o((icial s$all or!er its re&air vacation or !emolition !e&en!ing %&on t$e !egree o( !anger to li(e $ealt$ or sa(et'. 2$is is ,it$o%t &re9%!ice to (%rt$er action t$at ma' be ta+en %n!er t$e &rovisions o( #rticles 08/ an! G80 to 757 o( t$e Civil Co!e o( t$e =$ili&&ines." From t$e abovementione! &rovisions it is %n.%estionable t$at t$e B%il!ing O((icial $as t$e a%t$orit' to or!er t$e con!emnation an! !emolition o( b%il!ings ,$ic$ are (o%n! to be in a !angero%s or r%ino%s con!ition. *t is also clear (rom t$e Com&ilation o( Or!inances o( t$e Cit' o( Manila t$at t$e Ma'or $as t$e &o,er to con(irm or !en' t$e action ta+en b' t$e B%il!ing O((icial ,it$ res&ect to t$e !angero%s or r%ino%s b%il!ings. Cit' 3ngineer an! B%il!ing O((icial -om%lo M. !el -osario can t$ere(ore vali!l' iss%e t$e .%estione! con!emnation an! !emolition or!ers. 2$is is also tr%e ,it$ t$e res&on!ent Ma'or ,$o can a&&rove or !en' t$e con!emnation or!ers as &rovi!e! in )ection /7G o( t$e Com&ilation o( Or!inances o( t$e Cit' o( Manila. *t is a settle! !octrine t$at t$ere is grave ab%se o( !iscretion amo%nting to lac+ o( 9%ris!iction ",$en t$ere is a ca&ricio%s an! ,$imsical e4ercise o( 9%!gment as is e.%ivalent to lac+ o( 9%ris!iction s%c$ as ,$ere t$e &o,er is e4ercise! in an arbitrar' or !es&otic manner b' reason o( &assion or &ersonal $ostilit' an! it m%st be so &atent an! gross so as to amo%nt to an evasion o( &ositive !%t' or to a virt%al re(%sal to &er(orm t$e !%t' en9oine! or to act at all in contem&lation o( la,." 6e (in! no grave ab%se o( !iscretion on t$e &art o( t$e res&on!ent Cit' 3ngineer beca%se t$e or!ers ,ere ma!e onl' a(ter t$oro%g$ oc%lar ins&ections ,ere con!%cte! b' t$e Cit'Hs B%il!ing *ns&ectors. 2$e res%lts o( t$e ins&ections ,ere set (ort$ in a memoran!%m !ate! 1G November 188/ ,$ere it ,as s$o,n t$at all t$e b%il!ings $a! arc$itect%ral str%ct%ral sanitar' &l%mbing an! electrical !e(ects o( %& to 85Y. 2$e Ma'orHs act o( a&&roving t$e con!emnation or!ers ,as li+e,ise !one in accor!ance ,it$ la,. 2$e &rotest ma!e b' &etitioners ,as s%bmitte! onl' on // Febr%ar' 1881 or t$ree mont$s a(ter t$e notices o( con!emnation ,ere iss%e! an! clearl' be'on! t$e seven !a's &rescribe! %n!er )ection /7G o( t$e Com&ilation o( Or!inances o( t$e Cit' o( Manila. Moreover a&&eal ,as li+e,ise available to &etitioners. 2$e *m&lementing -%les an! -eg%lations &rom%lgate! b' t$e t$en Ministr' o( =%blic 6or+s to im&lement =.D. No. 158G %n!er t$e title #batement?Demolition o( B%il!ings &rovi!e: "C. =roce!%re (or Demolition o( B%il!ings. 2$e (ollo,ing ste&s s$all be observe! in t$e abatement?!emolition o( b%il!ings %n!er t$is -%le: C.1. 2$ere m%st be a (in!ing or !eclaration b' t$e B%il!ing O((icial t$at t$e b%il!ing or str%ct%re is a n%isance r%ino%s or !angero%s . . .C.1. 6it$in t$e (i(teenD!a' &erio! t$e o,ner ma' i( $e so !esires a&&eal to t$e )ecretar' t$e (in!ing or !eclaration o( t$e B%il!ing O((icial an! as+ t$at a reDins&ection or reDinvestigation o( t$e
/1

b%il!ing or str%ct%re be ma!e . . .C.G. 2$e !ecision o( t$e )ecretar' on t$e a&&eal s$all be (inal." Certiorari ,ill not be t$en beca%se &etitioners (aile! to e4$a%st all t$e a!ministrative reme!ies. 2$is Co%rt $as long %&$el! t$e !octrine o( e4$a%stion o( a!ministrative reme!ies beca%se it rests on t$e ass%m&tion t$at t$e a!ministrative bo!' boar! or o((icer i( given t$e c$ance to correct its?$is mista+e or error ma' amen! its?$is !ecision on a given matter. 6$ere t$e enabling stat%te in!icates a &roce!%re (or a!ministrative revie, an! &rovi!es a s'stem o( a!ministrative a&&eal or reconsi!eration t$e co%rts (or reasons o( la, comit' an! convenience ,ill not entertain a case %nless t$e available a!ministrative reme!ies $ave been resorte! to an! t$e a&&ro&riate a%t$orities $ave been given o&&ort%nit' to act an! correct t$e errors committe! in t$e a!ministrative (or%m. 2$ere are o( co%rse e4ce&tions to t$is r%le b%t none is available to &etitioners. im&lementation t$ereo(. 2$e &rogram ,as sta'e! b' CO# Decision No. 11C8. *ss%es: 1. 6ON - G5 is a vali! e4ercise o( &olice &o,er %n!er t$e general ,el(are cla%se. :3). =olice &o,er is in$erent in t$e state b%t not in m%nici&al cor&orations. Be(ore a m%nici&al cor&oration ma' e4ercise s%c$ &o,er t$ere m%st be a vali! !elegation o( s%c$ &o,er b' t$e legislat%re ,$ic$ is t$e re&ositor' o( t$e in$erent &o,ers o( t$e )tate. # vali! !elegation o( &olice &o,er ma' arise (rom e4&ress !elegation or be in(erre! (rom t$e mere (act o( t$e creation o( t$e m%nici&al cor&orationA an! as a general r%le m%nici&al cor&orations ma' e4ercise &olice &o,ers ,it$in t$e (air intent an! &%r&ose o( t$eir creation ,$ic$ are reasonabl' &ro&er to give e((ect to t$e &o,ers e4&ressl' grante! an! stat%tes con(erring &o,ers on &%blic cor&orations $ave been constr%e! as em&o,ering t$em to !o t$e t$ings essential to t$e en9o'ment o( li(e an! !esirable (or t$e sa(et' o( t$e &eo&le. M%nici&al governments e4ercise t$is &o,er %n!er t$e general ,el(are cla%se: a%t$orit' to "enact s%c$ or!inances an! iss%e s%c$ reg%lations as ma' be necessar' to carr' o%t an! !isc$arge t$e res&onsibilities con(erre! %&on it b' la, an! s%c$ as s$all be necessar' an! &ro&er to &rovi!e (or t$e $ealt$ sa(et' com(ort an! convenience maintain &eace an! or!er im&rove &%blic morals &romote t$e &ros&erit' an! general ,el(are o( t$e m%nici&alit' an! t$e in$abitants t$ereo( an! ins%re t$e &rotection o( &ro&ert' t$erein." )ec 7 o( B= 117: ever' LG@ s$all e4ercise t$e &o,ers e4&ressl' grante! t$ose necessaril' im&lie! t$ere(rom as ,ell as &o,ers necessar' an! &ro&er (or governance s%c$ as to &romote $ealt$ an! sa(et' en$ance &ros&erit' im&rove morals an! maintain &eace an! or!er in t$e LG@ an! &reserve t$e com(ort an! convenience o( t$e in$abitants t$erein."
Bina# v. *omingo Facts: -esol%tion G5 con(irming t$e ongoing b%rial assistance &rogram initiate! b' t$e ma'or>s o((ice. @n!er t$is &rogram bereave! (amilies ,$ose gross (amil' income !oes not e4cee! /+?mont$ ,ill receive a C55&$& cas$ relie( to be ta+en o%t o( %na&&ro&riate! available (%n!s e4isting in t$e m%nici&al treas%r'. 2$e Metro Manila Commission a&&rove! -esol%tion G5. 2$erea(ter t$e m%nici&al secretar' certi(ie! a !isb%rsement o( =055 555 (or t$e im&lementation o( t$e B%rial #ssistance =rogram. - G5 ,as re(erre! to t$e Commission on #%!it (or its e4&ecte! allo,ance in a%!it. Base! on its &reliminar' (in!ings CO# !isa&&rove! - G5 an! !isallo,e! in a%!it t$e !isb%rsement o( (%n!s (or t$e
/0

=olice &o,er: &o,er to &rescribe reg%lations to &romote t$e $ealt$ morals &eace e!%cation goo! or!er or sa(et' an! general ,el(are o( t$e &eo&le. *t is t$e most essential insistent an! illimitable o( &o,ersA greatest an! most &o,er(%l attrib%te o( t$e governmentA elastic an! m%st be res&onsive to vario%s social con!itions. CO#: t$ere is no &erce&tible connection or relation bet,een t$e ob9ective so%g$t to be attaine! %n!er - G5 an! t$e allege! &%blic sa(et' general ,el(are. etc. o( t$e in$abitants o( Ma+ati #&&arentl' CO# tries to reD!e(ine t$e sco&e o( &olice &o,er b' circ%mscribing its e4ercise to "&%blic sa(et' general ,el(are etc. o( t$e in$abitants o( Ma+ati ." =olice &o,er o( a m%nici&al cor&oration: broa! an! $as been sai! to be commens%rate ,it$ b%t not to e4cee! t$e !%t' to &rovi!e (or t$e real nee!s o( t$e &eo&le in t$eir $ealt$ sa(et' com(ort an! convenience as consistentl' as ma' be ,it$ &rivate rig$ts. *t e4ten!s to all t$e great &%blic nee!s an! in a broa! sense incl%!es all legislation an! almost ever' (%nction o( t$e m%nici&al government. *t covers a ,i!e sco&e o( s%b9ects an! ,$ile it is es&eciall' occ%&ie! ,it$ ,$atever a((ects t$e &eace sec%rit' $ealt$ morals an! general ,el(are o( t$e comm%nit' it is not limite! t$ereto b%t is broa!ene! to !eal ,it$ con!itions ,$ic$ e4ists so as to bring o%t o( t$em t$e greatest ,el(are o( t$e &eo&le b' &romoting &%blic convenience or general &ros&erit' an! to ever't$ing ,ort$,$ile (or t$e &reservation o( com(ort o( t$e in$abitants o( t$e cor&oration. 2$%s it is !eeme! ina!visable to attem&t to (rame an' !e(inition ,$ic$ s$all absol%tel' in!icate t$e limits o( &olice &o,er. CO# is not att%ne! to t$e c$anging o( t$e times. =%blic &%r&ose is not %nconstit%tional merel' beca%se it inci!entall' bene(its a limite! n%mber o( &ersons. O)G: "t$e !ri(t is to,ar!s social ,el(are legislation geare! to,ar!s state &olicies to &rovi!e a!e.%ate social services ;)ection 8 #rt. ** Constit%tion< t$e &romotion o( t$e general ,el(are ;)ection C *bi!< social 9%stice ;)ection 15 *bi!< as ,ell as $%man !ignit' an! res&ect (or $%man rig$ts. ;)ection 11 *bi!." 2$e care (or t$e &oor is generall' recogniBe! as a &%blic !%t'. 2$e s%&&ort (or t$e &oor $as long been an acce&te! e4ercise o( &olice &o,er in t$e &romotion o( t$e common goo!. 2$ere is no violation o( t$e e.%al &rotection cla%se in classi('ing &a%&ers as s%b9ect o( legislation. =a%&ers ma' be reasonabl' classi(ie!. Di((erent gro%&s ma' receive var'ing treatment. =recio%s to t$e $earts o( o%r legislators !o,n to o%r local co%ncilors is t$e ,el(are o( t$e &a%&ers. 2$%s stat%tes $ave been &asse! giving rig$ts an! bene(its to t$e !isable! emanci&ating t$e tenantD (armer (rom t$e bon!age o( t$e soil $o%sing t$e %rban &oor etc. 2$e resol%tion is a &aragon o( t$e contin%ing &rogram o( o%r government to,ar!s social 9%stice. 2$e B%rial #ssistance =rogram is a relie( o( &a%&erism t$o%g$ not com&lete. 2$e loss o( a member o( a (amil' is a &ain(%l e4&erience an! it is more &ain(%l (or t$e &oor to be (inanciall' b%r!ene! b' s%c$ !eat$. -esol%tion No. G5 vivi(ies t$e ver' ,or!s o( t$e late =resi!ent -amon Magsa'sa' Ht$ose ,$o $ave less in li(e s$o%l! $ave more in la,." 'atel v. Municipalit# o! $irac Facts: Base! on com&laints receive! b' t$e resi!ents o( barrio )ta. 3lena against t$e !ist%rbance ca%se! b' t$e o&eration o( t$e abaca bailing mac$ine insi!e 2atel>s ,are$o%se -esol%tion /81 ,as enacte! b' t$e M%nici&al Co%ncil o( Kirac !eclaring 2atel>s ,are$o%se a &%blic n%isance ,it$in t$e &%rvie, o( #rticle G80 o( t$e Civil Co!e an! !irecting t$e &etitioner to remove an! trans(er sai! ,are$o%se to a more s%itable &lace ,it$in t,o mont$s (rom recei&t o( t$e sai! resol%tion. 2$e m%nici&al o((icials conten! t$at &etitionerHs ,are$o%se ,as constr%cte! in violation o( Or!inance 11 &ro$ibiting t$e constr%ction o( ,are$o%ses near a bloc+ o( $o%ses eit$er in t$e &oblacion or barrios ,it$o%t maintaining t$e necessar' !istance o( /55 meters (rom sai! bloc+ o( $o%ses to avoi! loss o( lives an! &ro&erties b' acci!ental (ire. 2atel conten!s
/C

t$at sai! or!inance is %nconstit%tional contrar' to t$e !%e &rocess an! e.%al &rotection cla%se o( t$e Constit%tion an! n%ll an! voi! (or not $aving been &asse! in accor!ance ,it$ la,. *ss%e: 1. 6ON Or!inance No. 11 is %nconstit%tional. NO Or!inance 11 ,as &asse! b' t$e M%nici&al Co%ncil o( Kirac in t$e e4ercise o( its &olice &o,er. *t is a settle! &rinci&le o( la, t$at m%nici&al cor&orations are agencies o( t$e )tate (or t$e &romotion an! maintenance o( local sel(Dgovernment an! as s%c$ are en!o,e! ,it$ t$e &olice &o,ers in or!er to e((ectivel' accom&lis$ an! carr' o%t t$e !eclare! ob9ects o( t$eir creation. *ts a%t$orit' emanates (rom t$e general ,el(are cla%se %n!er t$e #!ministrative Co!e ,$ic$ rea!s: 2$e m%nici&al co%ncil s$all enact s%c$ or!inances an! ma+e s%c$ reg%lations not re&%gnant to la, as ma' be necessar' to carr' into e((ect an! !isc$arge t$e &o,ers an! !%ties con(erre! %&on it b' la, an! s%c$ as s$all seem necessar' an! &ro&er to &rovi!e (or t$e $ealt$ an! sa(et' &romote t$e &ros&erit' im&rove t$e morals &eace goo! or!er com(ort an! convenience o( t$e m%nici&alit' an! t$e in$abitants t$ereo( an! (or t$e &rotection o( &ro&ert' t$erein. For an or!inance to be vali! it m%st not onl' be ,it$in t$e cor&orate &o,ers o( t$e m%nici&alit' to enact b%t m%st also be &asse! accor!ing to t$e &roce!%re &rescribe! b' la,. 2$ese &rinci&les re.%ire t$at a m%nici&al or!inance ;1< m%st not contravene t$e Constit%tion or an' stat%te ;/< m%st not be %n(air or o&&ressive ;1< m%st not be &artial or !iscriminator' ;0< m%st not &ro$ibit b%t ma' reg%late tra!e ;C< m%st be general an! consistent ,it$ &%blic &olic' an! ;G< m%st not be %nreasonable. Or!inance 11 meets t$ese criteria. *n s&ite o( its (ract%re! s'nta4 ,$at is reg%late! b' t$e or!inance is t$e constr%ction o( ,are$o%ses ,$erein in(lammable materials are store! ,$ere s%c$ ,are$o%ses are locate! at a !istance o( /55 meters (rom a bloc+ o( $o%ses an! not t$e constr%ction &er se o( a ,are$o%se. 2$e &%r&ose is to avoi! t$e loss o( li(e an! &ro&ert' in case o( (ire ,$ic$ is one o( t$e &rimor!ial obligation o( t$e government. 2$e ob9ections inter&ose! b' t$e &etitioner to t$e vali!it' o( t$e or!inance $ave not been s%bstantiate!. *ts &%r&ose is ,ell ,it$in t$e ob9ectives o( so%n! government. No %n!%e restraint is &lace! %&on t$e &etitioner or (or an'bo!' to engage in tra!e b%t merel' a &ro$ibition (rom storing in(lammable &ro!%cts in t$e ,are$o%se beca%se o( t$e !anger o( (ire to t$e lives an! &ro&erties o( t$e &eo&le resi!ing in t$e vicinit'. #s (ar as &%blic &olic' is concerne! t$ere can be no better &olic' t$an ,$at $as been conceive! b' t$e m%nici&al government. 'amin v. CA Facts: 2$e m%nici&alit' o( D%mingag (ile ! a case (or t$e e9ectment o( Me!ina an! -osellon. #ccor!ing to t$e m%nici&alit' it is t$e o,ner o( a &arcel o( resi!ential lan! locate! at =oblacion D%mingag Zamboanga !el )%r ,it$ an area o( C 880 s.%are meters more or lessA t$at t$e &arcel o( lan! ,as reserve! (or &%blic &laBa %n!er == 1GC an! t$at t$e inc%mbenc' o( t$e late Ma'or *si!oro 3. -eal )r. or in 18C8 t$e m%nici&alit' lease! an #rea o( 1 1C5 s.%are meters to MP- s%b9ect to t$e con!ition t$at t$e' s$o%l! vacate t$e &lace in case it is nee!e! (or &%blic &%r&osesA t$at t$e !e(en!ants religio%sl' &ai! t$e rentals %ntil 18G7. MP$o,ever re(%se! to &a' t$e rentals as ,ell as vacate t$e area. Hence !es&ite t$e national government>s allotment (or t$e constr%ction o( a m%nici&al g'mnasi%m ,it$in t$e &%blic &laBa s%c$ constr%ction ,$ic$ ,as alrea!' starte! co%l! not contin%e beca%se o( t$e &resence o( t$e b%il!ings constr%cte! b' t$e !e(en!ants. #ccor!ing to t$e m%nici&alit' t$e a&&ro&riation (or t$e constr%ction o( t$e g'mnasi%m mig$t be reverte! bac+ to t$e national government ,$ic$ ,o%l! res%lt to "irre&arable !amage in9%r' an! &re9%!ice" to t$e m%nici&alit' an! its &eo&le ,$o are e4&ecte! to !erive bene(it (rom t$e accom&lis$ment o( t$e &ro9ect. -2C: 7%!ge 2amin iss%e! an or!er setting t$e &reliminar' $earing (or t$e iss%ance o( a ,rit o( &reliminar' man!ator' in9%nction an!?or ,rit o( &ossession an! instea! o( (iling an ans,er t$e
/G

res&on!ents (ile! an M2D alleging t$e lac+ o( 9%ris!iction o( t$e 2C since t$e com&laint is (or illegal !etainer ,$ic$ is ,it$in t$e original 9%ris!iction o( t$e m%nici&al co%rt an! t$e &en!enc' o( a ca!astral case bet,een t$e &arties over t$e o,ners$i& o( t$e same &arcel o( lan!. 2amin !enie! t$e M2D an! grante! t$e m%nici&alit'Hs motion (or a ,rit o( &ossession ",it$ t$e ancillar' ,rit o( !emolition to &lace in &ossession t$e &lainti(( on t$e lan! s%b9ect o( t$is case to t$e en! t$at t$e &%blic constr%ction t$ereon ,ill not be 9eo&ar!iBe!." #ccor!ing to 2amin t$e m%nici&alit' alleges t$at MP- are claiming o,ners$i& over t$e lan! ,$ic$ ,as &revio%sl' rente! to t$em. 2$is action is t$ere(ore an accion !e reivin!icacion a real action ,it$in t$e 9%ris!iction o( t$is co%rt. #s t$e com&laint is (or recover' o( o,ners$i& o( t$e lan! not to en(orce t$e contract t$e )tat%te o( Fra%! !oes not a&&l'. 2$e lan! s%b9ect o( t$is case is covere! b' =D 1GC ,it$!ra,ing t$is lan! (rom sale o( settlement an! reserving t$e same (or sc$ool site &%r&oses %n!er t$e a!ministration o( t$e Director o( =%blic )c$ool an! &%blic &laBa %n!er t$e a!ministration o( t$e M%nici&alit' o( D%mingag t$ere(ore t$e Ca!astral co%rt $as no 9%ris!iction over t$e lan! involve! in t$is case. 'amin 3usti!ie his granting the motion !or a "rit o! possession "ith the ancillar# "rit o! emolition b# appl#ing the rule an eminent omain in analog# in that un er this Rule the complainant is given the right to the "rit o! possession in or er that public construction an pro3ects "ill not be ela#e . #ccor!ing to $im t$e necessit' o( a ,rit o( &ossession is greater in t$e instant case consi!ering t$at t$e &arcel o( lan! is covere! b' a == an! t$e onDgoing constr%ction t$ereon is being en!angere! to be le(t %n(inis$e! on acco%nt o( t$e b%il!ings stan!ing on t$e &arcel o( lan! beca%se t$e a&&ro&riation (or t$e constr%ction mig$t be reverte! bac+ to t$e national treas%r'. MP- (ile! an omnib%s M,it$ motion to set asi!e or!er an! to .%as$ ,rit o( &ossession an! !emolition b%t t$is ,as !enie!. 2$e m%nici&alit' im&lemente! t$e ,rit o( &ossession an! ancillar' ,rit o( !emolition iss%e! b' t$e &etitioner 7%!ge res%lting in t$e !is&ossession o( t$e &rivate res&on!ents (rom t$e &arcel o( lan! an! t$e !emolition o( str%ct%res an! b%il!ings t$ereon o,ne! b' t$e res&on!ents. MP->s ans,er: 2$e &arcel o( lan! $as been o,ne! occ%&ie! an! &ossess b' res&on!ent Kicente Me!ina since 1807 ,$en $e bo%g$t t$e s%b9ect &arcel (rom a )%banan nativeA t$at t$e ot$er res&on!ent Fort%nata -osellon lease! (rom Me!ina a &ortion o( t$e &arcel o( lan!A t$at t$e res&on!ents ,ere never lessees o( t$e &etitioner m%nici&alit'A t$at =roclamation 1GC iss%e! on Marc$ 1C 18G8 recogniBe! "&rivate rig$ts"A an! t$at a case is &en!ing be(ore t$e Ca!astral co%rt bet,een res&on!ent Me!ina an! &etitioner m%nici&alit' as regar!s t$e o,ners$i& o( t$e s%b9ect &arcel o( lan!. Be(ore t$e &etitioner 7%!ge co%l! (%rt$er act on t$e case t$e &rivate res&on!ents (ile! a &etition (or certiorari ,it$ t$e C# .%estioning t$e or!ers o( t$e &etitioner 7%!ge. =etition ,as given !%e co%rse an! a 2-O ,as iss%e! en9oining t$e &etitioner 7%!ge (rom &rocee!ing ,it$ t$e $earing o( t$e case an! (rom en(orcing t$e or!ers. C#: -2C committe! an error ,$en it a&&lie! b' analog' t$e r%le on eminent !omain to 9%sti(' t$e iss%ance o( t$e ,rit o( &ossession an! ,rit o( !emolition. 2$e a&&ellate co%rt &ointe! o%t t$at %n!er t$is r%le: ;i< 2$ere is clear stat%tor' a%t$orit' (or t$e ta+ing o( &ossession b' t$e government an! ;ii< 2$e a%t$orit' is &remise! on t$e government !e&ositing t$e val%e o( t$e lan! to be ta+en. *n t$e case at bar t$ere is neit$er stat%tor' a%t$orit' (or t$e trial co%rtHs action nor bon! given to com&ensate t$e &etitioners (or t$e !e&rivation o( t$eir &ossession an! t$e !estr%ction o( t$eir $o%ses i( it t%rns o%t t$at t$e lan! belongs to t$em. For t$is reason ,e t$in+ t$e trial co%rts or!er is arbitrar' an! voi!. For t$e (act is t$at &etitioners claim o,ners$i& o( t$e lan! in .%estion an! %ntil t$at .%estion is resolve! eit$er in t$e case &en!ing be(ore t$e res&on!ent 9%!ge or in t$e ca!astral &rocee!ing it ,o%l! be %n9%st to !e&rive &etitioners o( its &ossession. *ss%e: 1. 6ON t$e allegations in t$e com&laint constit%te a ca%se o( action (or abatement o( &%blic n%isance %n!er #rticle G80 o( t$e Civil Co!e. #&&l'ing t$ese criteria ,e agree ,it$ t$e &etitioners t$at t$e com&laint alleges (act%al circ%mstances o( a com&laint (or abatement o( &%blic n%isance. #rt. G80 CC # n%isance is an' act omission establis$ment b%siness con!ition o( &ro&ert' or an't$ing else ,$ic$: ;C< Hin!ers or im&airs t$e %se o( &ro&ert'. #rt. G8C CC N%isance is eit$er &%blic or &rivate. # &%blic n%isance a((ects a comm%nit' or neig$bor$oo! or an' consi!erable n%mber o( &ersons alt$o%g$ t$e e4tent o( t$e anno'ance
/7

!anger or !amage %&on in!ivi!%als ma' be %ne.%al. .. 2$%s t$e com&laint states: t$at &etitioner m%nici&alit' is t$e o,ner o( a &arcel o( lan! covere! b' =resi!ential =roclamation No 1GC ,$ic$ is reserve! (or a &%blic &laBaA t$at t$e &rivate res&on!ents b' virt%e o( a contract o( lease entere! into b' t$e (ormer ma'or occ%&ie! a &ortion o( t$e &arcel o( lan! constr%cting b%il!ings t$ereonA t$at t$e &rivate res&on!ents re(%se! to vacate t$e &remises !es&ite !eman!sA t$at t$e m%nici&alit' is constr%cting a m%nici&al g'mnasi%m in t$e area (inance! b' a&&ro&riations &rovi!e! b' t$e national governmentA an! t$at t$e a&&ro&riations are in !anger o( being reverte! to t$e national treas%r' beca%se t$e constr%ction $a! to be sto&&e! in vie, o( t$e re(%sal o( t$e &rivate res&on!ents to vacate t$e area. 1. 6ON t$e m%nici&alit' is entitle! to a ,rit o( &ossession an! a ,rit o( !emolition even be(ore t$e trial o( t$e case starts. #rticle G88 o( t$e Civil Co!e &rovi!es (or t$e (ollo,ing reme!ies against a &%blic n%isance: ;1< # &rosec%tion %n!er t$e =enal Co!e or an' local or!inanceA or;/< # civil actionA or ;1< #batement ,it$o%t 9%!icial &rocee!ings. 2$e &etitioner m%nici&alit' $a! t$ree reme!ies (rom ,$ic$ to select its ca%se o( action. *t c$ose to (ile a civil action (or t$e recover' o( &ossession o( t$e &arcel o( lan! occ%&ie! b' t$e &rivate res&on!ents. Obvio%sl' &etitioner m%nici&alit' ,as a,are t$at %n!er t$e t$en LGC ;B.=. Blg. 117< t$e )angg%niang Ba'an $as to (irst &ass an or!inance be(ore t$e m%nici&alit' ma' s%mmaril' abate a &%blic n%isance. ;)ec. 108;B< ;ee<. On t$e &remise t$at t$e &arcel o( lan! (orms &art o( a &%blic &laBa t$e &etitioners no, conten! t$at t$e 7%!ge ,as 9%sti(ie! in iss%ing t$e ,rit o( &ossession an! ,rit o( !emolition. # &%blic &laBa is o%tsi!e t$e commerce o( man an! constr%ctions t$ereon can be abate! s%mmaril' b' t$e m%nici&alit' citing a case: 34actl' in &oint is 3s&irit% v. M%nici&al Co%ncil o( =oBorr%bio ;15/ =$il. 8G8D875< ,$ere t$e )%&reme Co%rt !eclare!: 2$ere is absol%tel' no .%estion t$at t$e to,n &laBa cannot be %se! (or t$e constr%ction o( mar+et stalls s&eciall' o( resi!ences an! t$at s%c$ str%ct%res constit%te a n%isance s%b9ect to abatement accor!ing to la,. 2o,n &laBas are &ro&erties o( &%blic !ominion to be !evote! to &%blic %se an! to be ma!e available to t$e &%blic in general. 2$e' are o%tsi!e t$e commerce o( man an! cannot be !is&ose! o( or even lease! b' t$e m%nici&alit' to &rivate &arties. #&&l'ing t$is ,ellDsettle! !octrine ,e r%le t$at &etitioners $a! no rig$t in t$e (irst &lace to occ%&' t$e !is&%te! &remises an! cannot insist in remaining t$ere no, on t$e strengt$ o( t$eir allege! lease contracts. 2$e' s$o%l! $ave realiBe! an! acce&te! t$is earlier consi!ering t$at even be(ore Civil Case No. /505 ,as !eci!e! t$e m%nici&al co%ncil o( )an Fernan!o $a! alrea!' a!o&te! -esol%tion No. /8 series o( 18G0 !eclaring t$is area as t$e &ar+ing &lace an! &%blic &laBa o( t$e m%nici&alit'. *t is t$e !ecision in Civil Case No. /505 an! t$e sai! resol%tion o( t$e m%nici&al co%ncil o( )an Fernan!o t$at res&on!ent Macalino ,as see+ing to en(orce ,$en $e or!ere! t$e !emolition o( t$e stalls constr%cte! in t$e !is&%te! area. #s o((icerDinDc$arge o( t$e o((ice o( t$e ma'or $e $a! t$e !%t' to clear t$e area an! restore it to its inten!e! %se as a &ar+ing &lace an! &%blic &laBa o( t$e m%nici&alit' o( )an Fernan!o con(ormabl' to t$e a(orementione! or!ers (rom t$e co%rt an! t$e co%ncil. *t is t$ere(ore not correct to sa' t$at $e $a! acte! ,it$o%t a%t$orit' or ta+en t$e la, into $is $an!s in iss%ing $is or!er.
/8

2$e Co%rt observes t$at even ,it$o%t s%c$ investigatiom an! recommen!ation t$e res&on!ent ma'or ,as 9%sti(ie! in or!ering t$e area cleare! on t$e strengt$ alone o( its stat%s as a &%blic &laBa as !eclare! b' t$e 9%!icial an! legislative a%t$orities. . *( t$ere(ore t$e allegations in t$e com&laint are tr%e an! t$at t$e &arcel o( lan! being occ%&ie! b' t$e &rivate res&on!ents is in!ee! a &%blic &laBa t$en t$e ,rit o( &ossession an! ,rit o( !emolition ,o%l! $ave been 9%sti(ie!. *n (act %n!er s%c$ circ%mstances t$ere ,o%l! $ave been no nee! (or a ,rit o( &ossession in (avor o( t$e &etitioner m%nici&alit' since t$e &rivate res&on!entsH occ%&ation over t$e s%b9ect &arcel o( lan! can not be recogniBe! b' an' la,. # ,rit o( !emolition ,o%l! $ave been s%((icient to e9ect t$e &rivate res&on!ents. Ho,ever not onl' !i! t$e m%nici&alit' avoi! t$e %se o( abatement ,it$o%t 9%!icial &rocee!ings b%t t$e stat%s o( t$e s%b9ect &arcel o( lan! $as 'et to be !eci!e!. 6e $ave to consi!er t$e (act t$at =roclamation No. 1GC !ate! Marc$ 1C 18G8 recogniBes &rivate rig$ts ,$ic$ ma' $ave been veste! on ot$er &ersons to ,it: B: 2H3 =-3)*D3N2 OF 2H3 =H*L*==*N3) =-OCL#M#2*ON NO. 1GC -3)3-K*NG FO)CHOOL )*23 =@BL*C =L#Z# #ND =L#:G-O@ND =@-=O)3) C3-2#*N =#-C3L) OF L#ND OF 2H3 =@BL*C DOM#*N )*2@#23D *N 2H3 M@N*C*=#L*2: OF D@M*NG#G =-OK*NC3 OF Z#MBO#NG# D3L )@- *)L#ND OF M*ND#N#O. @&on recommen!ation o( t$e )ecretar' o( #gric%lt%re an! Nat%ral -eso%rces an! &%rs%ant to t$e a%t$orit' veste! in me b' la, * F3-D*N#ND 3. M#-CO) =-3)*D3N2 OF 2H3 =H*L*==*N3) !o $ereb' ,it$!ra, (rom sale or settlement an! %n!er t$e a!ministration o( t$e Director o( =%blic )c$ools a!ministration o( t$e M%nici&al Government o( D%mingag s%b9ect to &rivate rig$ts i( an' t$ere be certain &arcels o( lan! o( t$e &%blic !omain sit%ate! in t$e M%nici&alit' o( D%mingag =rovince o( Zamboanga !el )%r *slan! o( Min!anao [ *t is to be note! t$at even be(ore t$e =roclamation t$e &arcel o( lan! ,as t$e s%b9ect o( ca!astral &rocee!ings be(ore anot$er branc$ o( t$e -egional 2rial Co%rt o( Zamboanga !el )%r. #t t$e time o( t$e (iling o( t$e instant case t$e ca!astral &rocee!ings inten!e! to settle t$e o,ners$i& over t$e .%estione! &ortion o( t$e &arcel o( lan! %n!er =roclamation No. 1GC ,ere still &en!ing. One o( t$e claimants in t$e ca!astral &rocee!ings is &rivate res&on!ent Kicente Me!ina ,$o trace! $is o,ners$i& over t$e s%b9ect &arcel o( lan! as (ar bac+ as 1807 ,$en $e allege!l' bo%g$t t$e same (rom a )%banan native. @n!er t$e ca!astral s'stem t$e government t$ro%g$ t$e Director o( Lan!s initiates t$e &rocee!ings b' (iling a &etition in co%rt a(ter ,$ic$ all o,ners or claimants are com&elle! to act an! &resent t$eir ans,ers ot$er,ise t$e' lose t$eir rig$t to t$eir o,n &ro&ert'. 2$e &%r&ose is to serve t$e &%blic interests b' re.%iring t$at t$e titles to an' lan!s "be settle! an! a!9%!icate!." ;)ection 1 Ca!astral #ct UNo. //C81V Government o( t$e =$ili&&ine *slan!s v. #b%ral 18 =$il. 88G U1818V. *t is a &rocee!ing in rem some,$at a+in to a 9%!icial in.%ir' an! investigation lea!ing to a 9%!icial !ecree. ;Director o( Lan!s v. -oman #rc$bis$o& o( Manila 01 =$il. 1/5 U18/5V< Consi!ering t$ere(ore t$e nat%re an! &%r&ose o( t$e Ca!astral &rocee!ings t$e o%tcome o( sai! &rocee!ings becomes a &re9%!icial .%estion ,$ic$ m%st be a!!resse! in t$e resol%tion o( t$e instant case. 6e a&&l' b' analog' t$e r%ling in t$e case o( W%iambao v. Osorio ;1C8 )C-# G70 U1888V< to ,it: 2$e
/8

instant controvers' boils !o,n to t$e sole .%estion o( ,$et$er or not t$e a!ministrative case bet,een t$e &rivate &arties involving t$e lot s%b9ect matter o( t$e e9ectment case constit%tes a &re9%!icial .%estion ,$ic$ ,o%l! o&erate as a bar to sai! e9ectment case. # &re9%!icial .%estion is %n!erstoo! in la, to be t$at ,$ic$ arises in a case t$e resol%tion o( ,$ic$ is a logical antece!ent o( t$e iss%e involve! in sai! case an! t$e cogniBance o( ,$ic$ &ertains to anot$er trib%nal. ;Za&anta v. Montesa 0 )C-# C15 U18G/VA =eo&le v. #ragon C5 O.G.. No. 15 08G1< 2$e !octrine o( &re9%!icial .%estion comes as in to &la' generall' in a sit%ation ,$ere civil an! criminal actions are &en!ing an! t$e iss%es involve! in bat$ cases are similar or so closel'Drelate! t$at an iss%e m%st be &reD em&tivel' resolve! in t$e civil case be(ore t$e criminal action can &rocee!. 2$%s t$e e4istence it a &re9%!icial .%estion in a civil case is allege! in t$e criminal case to ca%se t$e s%s&ension o( t$e latter &en!ing (inal !etermination o( t$e (ormer. 2$e essential elements o( a &re9%!icial .%estion as &rovi!e! %n!er )ection C -%le 111 o( t$e -evise! -%les o( Co%rt area: UaV t$e civil action involves an iss%e similar or intimatel' relate! to t$e iss%e in t$e criminal actionA an! UbV t$e resol%tion o( s%c$ iss%e !etermines ,$et$er or not t$e criminal action ma' &rocee!. 2$e actions involve! in t$e case at bar being res&ectivel' civil an! a!ministrative in c$aracter it is obvio%s t$at tec$nicall' t$ere is no &re9%!icial .%estion to s&ea+ o(. 3.%all' a&&arent $o,ever is t$e intimate correlation bet,een sai! t,o U/V &rocee!ings stemming (rom t$e (act t$at t$e rig$t o( &rivate res&on!ents to e9ect &etitioner (rom t$e !is&%te! &ortion !e&en!s &rimaril' on t$e resol%tion o( t$e &en!ing a!ministrative case. For ,$ile it ma' be tr%e t$at &rivate res&on!ents $a! &rior &ossession o( t$e lot in .%estion at t$e time o( t$e instit%tion o( t$e e9ectment case s%c$ rig$t o( &ossession $a! been terminate! or at t$e ver' least s%s&en!e! b' t$e cancellation b' t$e Lan! #%t$orit' o( t$e #greement to )ell e4ec%te! in t$eir (avor. 6$et$er or not &rivate res&on!ents can contin%e to e4ercise t$eir rig$t o( &ossession is b%t a necessar' logical conse.%ence o( t$e iss%e involve! in t$e &en!ing a!ministrative case assailing t$e vali!it' o( t$e cancellation o( t$e #greement to )ell an! t$e s%bse.%ent a,ar! o( t$e !is&%te! &ortion to &etitioner. *( t$e cancellation o( t$e agreement to )ell an! t$e s%bse.%ent a,ar! to &etitioner are voi!e! t$en &rivate res&on!entHs rig$t o( &ossession is lost an! so ,o%l! t$eir rig$t to e9ect &etitioner (rom sai! &ortion. Face! ,it$ t$ese !istinct &ossibilities t$e more &r%!ent co%rse (or t$e trial co%rt to $ave ta+en is to $ol! t$e e9ectment &rocee!ings in abe'ance %ntil a(ter a !etermination o( t$e a!ministrative case. *n!ee! logic an! &ragmatism i( not 9%ris&r%!ence !ictate s%c$ move. 2o allo, t$e &arties to %n!ergo trial not,it$stan!ing t$e &ossibilit' o( &etitionerHs rig$t o( &ossession being %&$el! in t$e &en!ing a!ministrative case is to nee!lessl' re.%ire not onl' t$e &arties b%t t$e co%rt as ,ell to e4&en! time e((ort in ,$at ma' t%rn o%t to be a s$eer e4ercise in (%tilit'. 2$%s 1 #m 7%r /! tells %s: 2$e co%rt in ,$ic$ an action is &en!ing ma' in t$e e4ercise o( a so%n! !iscretion %&on &ro&er a&&lication (or a sta' o( t$at action $ol! t$e action in abe'ance to abi!e t$e o%tcome o( anot$er &en!ing in anot$er co%rt es&eciall' ,$ere t$e &arties an! t$e iss%es are t$e same (or t$ere is &o,er in$erent in ever' co%rt to control t$e
15

!is&osition o( ca%ses an its !oc+ets ,it$ econom' o( time an! e((ort (or itsel( (or co%nsel an! (or litigants. 6$ere t$e rig$ts o( &arties in t$e recor! action cannot be &ro&erl' !etermine! %ntil t$e .%estions raise! in t$e (irst action are settle! t$e secon! action s$o%l! be sta'e!. 6$ile t$is r%le is &ro&erl' a&&licable to instances involving t,o U/V co%rt actions t$e e4istence in t$e instant case o( t$e same consi!erations o( i!entit' o( &arties an! iss%es econom' o( time an! e((ort (or t$e co%rt t$e co%nsels an! t$e &arties as ,ell as t$e nee! to resolve t$e &artiesH rig$t o( &ossession be(ore t$e e9ectment case ma' be &ro&erl' !etermine! 9%sti(ies t$e r%leHs analogo%s a&&lication to t$e case at bar. 2ec$nicall' a &re9%!icial .%estion s$all not rise in t$e instant case since t$e t,o actions involve! are bot$ civil in nat%re. Ho,ever ,e $ave to consi!er t$e (act t$at t$e ca!astral &rocee!ings ,ill %ltimatel' settle t$e real o,ner?s o( t$e !is&%te! &arcel o( lan!. *n case res&on!ent Kicente Me!ina is a!9%!ge! t$e real o,ner o( t$e &arcel o( lan! t$en t$e ,rit o( &ossession an! ,rit o( !emolition ,o%l! necessaril' be n%ll an! voi!. Not onl' t$at. 2$e !emolition o( t$e constr%ctions in t$e &arcel o( lan! ,o%l! &rove tr%l' %n9%st to t$e &rivate res&on!ents. Patalinhug v. CA Facts: 2$e )angg%niang =anl%ngso! o( Davao Cit' enacte! Or!inance 1G1 series o( 188/ ot$er,ise +no,n as t$e "34&an!e! Zoning Or!inance o( Davao Cit' " )ection 8 o( ,$ic$ states: )ec. 8. @)3 -3G@L#2*ON) *N CD/ D*)2-*C2) ;)$a!e! lig$t re! in t$e 34&an!e! Zoning Ma&< #CD/ District s$all be !ominantl' (or commercial an! com&atible in!%strial %ses as &rovi!e! $ere%n!er: 1.1 F%neral =arlors?Memorial Homes ,it$ a!e.%ate o(( street &ar+ing s&ace ;see &ar+ing stan!ar!s o( =.D. 158G< an! &rovi!e! t$at t$e' s$all be establis$e! not less t$an C5 meters (rom an' resi!ential str%ct%res c$%rc$es an! ot$er instit%tional b%il!ings. @&on &rior a&&roval an! certi(ication o( Boning com&liance b' Zoning #!ministrator iss%e! on Febr%ar' 15 1887 B%il!ing =ermit No. 875/C0 in (avor o( &etitioner (or t$e constr%ction o( a (%neral &arlor in t$e name an! st'le o( Metro&olitan F%neral =arlor at Cabag%io #ven%e #g!ao Davao Cit'. 2$erea(ter &etitioner commence! t$e constr%ction o( $is (%neral &arlor. #cting on t$e com&laint o( several resi!ents o( Baranga' #g!ao Davao Cit' t$at t$e constr%ction o( &etitionerHs (%neral &arlor violate! Or!inance No. 1G1 since it ,as allege!l' sit%ate! ,it$in a C5Dmeter ra!i%s (rom t$e *glesia ni Mristo C$a&el an! several resi!ential str%ct%res t$e )angg%niang =anl%ngso! con!%cte! an investigation an! (o%n! t$at "t$e nearest resi!ential str%ct%re o,ne! b' 6il(re! G. 2e&oot is onl' 8 inc$es to t$e so%t$. . . . ." Not,it$stan!ing t$e (in!ings o( t$e )angg%niang =anl%ngso! &etitioner contin%e! to constr%ct $is (%neral &arlor ,$ic$ ,as (inis$e! on November 1 1887. Conse.%entl' &rivate res&on!ents (ile! on )e&tember G 1888 a case (or t$e !eclaration o( n%llit' o( a b%il!ing &ermit ,it$ &reliminar' &ro$ibitor' an! man!ator' in9%nction an!?or restraining or!er ,it$ t$e trial co%rt. *ss%e: 1. 6ON t$e C# erre! in concl%!ing t$at t$e 2e&oot b%il!ing a!9acent to &etitionerHs (%neral &arlor is resi!ential sim&l' beca%se it ,as allege!l' !eclare! as s%c$ (or ta4ation &%r&oses in com&lete !isregar! o( Or!inance 1G1 !eclaring t$e s%b9ect area as !ominantl' (or commercial an! com&atible in!%strial %ses. :3). # ta4 !eclaration is not concl%sive o( t$e nat%re o( t$e &ro&ert' (or Boning &%r&oses. # &ro&ert' ma' $ave been !eclare! b' its o,ner as resi!ential (or real estate ta4ation &%r&oses b%t it ma' ,ell be ,it$in a commercial Bone. # !iscre&anc' ma' t$%s e4ist in t$e !etermination o( t$e nat%re o( &ro&ert' (or real estate ta4ation &%r&oses visDaDvis t$e !etermination o( a &ro&ert' (or Boning &%r&oses. 3ven i( ,e are to e4amine t$e evi!entiar' val%e o( a ta4 !eclaration %n!er t$e -eal =ro&ert' 2a4 Co!e a ta4 !eclaration onl' enables t$e assessor to i!enti(' t$e same (or assessment levels. *n (act a ta4 !eclaration !oes not bin! a &rovincial?cit' assessor (or %n!er )ec. // o( t$e -eal
11

3state 2a4 Co!e a&&raisal an! assessment are base! on t$e act%al %se irres&ective o( "an' &revio%s assessment or ta4&a'erHs val%ation t$ereon " ,$ic$ is base! on a ta4&a'erHs !eclaration. *n (act a &iece o( lan! !eclare! b' a ta4&a'er as resi!ential ma' be assesse! b' t$e &rovincial or cit' assessor as commercial beca%se its act%al %se is commercial. 2$e trial co%rtHs !etermination t$at Mr. 2e&ootHs b%il!ing is commercial an! t$ere(ore )ec. 8 is ina&&licable is strengt$ene! b' t$e (act t$at t$e )angg%niang =anl%ngso! $as !eclare! t$e .%estione! area as commercial or CD/. Conse.%entl' even i( 2e&ootHs b%il!ing ,as !eclare! (or ta4ation &%r&oses as resi!ential once a local government $as reclassi(ie! an area as commercial t$at !etermination (or Boning &%r&oses m%st &revail. 6$ile t$e commercial c$aracter o( t$e .%estione! vicinit' $as been !eclare! t$r% t$e or!inance &rivate res&on!ents $ave (aile! to &resent convincing arg%ments to s%bstantiate t$eir claim t$at Cabag%io #ven%e ,$ere t$e (%neral &arlor ,as constr%cte! ,as still a resi!ential Bone. @n.%estionabl' t$e o&eration o( a (%neral &arlor constit%tes a "commercial &%r&ose " as gleane! (rom Or!inance 1G1. 2$e !eclaration o( t$e sai! area as a commercial Bone t$r% a m%nici&al or!inance is an e4ercise o( &olice &o,er to &romote t$e goo! or!er an! general ,el(are o( t$e &eo&le in t$e localit'. Corollar' t$ereto t$e state in or!er to &romote t$e general ,el(are ma' inter(ere ,it$ &ersonal libert' ,it$ &ro&ert' an! ,it$ b%siness an! occ%&ations. =ersons ma' be s%b9ecte! to certain +in!s o( restraints an! b%r!ens in or!er to sec%re t$e general ,el(are o( t$e state an! to t$is (%n!amental aim o( government t$e rig$ts o( t$e in!ivi!%al ma' be s%bor!inate!. 2$e or!inance ,$ic$ reg%lates t$e location o( (%neral $omes $as been a!o&te! as &art o( com&re$ensive Boning &lans (or t$e or!erl' !evelo&ment o( t$e area covere! t$ere%n!er. Greater Balanga *evelopment Corp. v. Municipalit# o! Balanga Facts: 2$is case involves a &arcel o( lan! sit%ate! in Barrio )an 7ose M%nici&alit' o( Balanga =rovince o( Bataan. *t is registere! in t$e name o( &etitioner Greater Balanga Develo&ment Cor&oration. GBDC is a !omestic cor&oration o,ne! an! controlle! b' t$e Camac$o (amil' ,$ic$ !onate! to t$e M%nici&alit' o( Balanga t$e &resent site o( t$e Balanga =%blic Mar+et. 2$e lot in !is&%te lies be$in! t$e Balanga =%blic Mar+et. *n 1887 GBDC con!%cte! a relocation s%rve' o( t$e area. *t !iscovere! t$at certain &ortions o( t$e &ro&ert' $a! been "%nla,(%ll' %s%r&e! an! inva!e!" b' t$e M%nici&alit' o( Balanga ,$ic$ $a! "allo,e!?tolerate!?abette!" t$e constr%ction o( s$anties an! mar+et stalls ,$ile c$arging mar+et (ees an! mar+et entrance (ees (rom t$e occ%&ants an! %sers o( t$e area. GBDC t$en a&&lie! ,it$ t$e O((ice o( t$e Ma'or o( Balanga (or a b%siness &ermit to engage in b%siness in t$e sai! area. On t$e same !a' Ma'or Melanio ). BanBon 7r. iss%e! Ma'orHs =ermit No. /7/8 granting &etitioner t$e &rivilege o( a "real estate !ealer?&rivatel'Do,ne! &%blic mar+et o&erator" %n!er t$e tra!e name o( Balanga =%blic Mar+et. Ho,ever t$e )angg%niang Ba'an o( Balanga &asse! -esol%tion No. 1/ sD88 ann%lling t$e Ma'orHs &ermit iss%e! to &etitioner an! a!vising t$e Ma'or to revo+e t$e &ermit "to o&erate a &%blic mar+et." =%rs%ant to sai! -esol%tion Ma'or BanBon on Marc$ 7 1888 iss%e! 34ec%tive Or!er No. 1 sD88 revo+ing t$e &ermit inso(ar as it a%t$oriBe! t$e o&eration o( a &%blic mar+et. GBDC (ile! t$e instant &etition ,it$ a &ra'er (or t$e iss%ance o( a ,rit o( &reliminar' man!ator' an! &ro$ibitor' in9%nction or restraining or!er aime! at t$e reinstatement o( t$e Ma'orHs &ermit an! t$e c%rtailment o( t$e m%nici&alit'Hs collection o( mar+et (ees an! mar+et entrance (ees. 2$e Co%rt !i! not iss%e t$e &reliminar' relie(s &ra'e! (or. *ss%e: 6ON t$e Ma'or ma' iss%e !en' or revo+e m%nici&al licenses an! &ermits. -es&on!ent: as t$e local c$ie( e4ec%tive t$e Ma'or ma' iss%e !en' or revo+e m%nici&al licenses an! &ermits. 2$e' conten!e! t$at -esol%tion No. 1/ sD88 o( t$e )angg%niang Ba'an t$e basis o( 34ec%tive Or!er No. 1 sD88 ,as a legitimate e4ercise o( local legislative a%t$orit' an! as s%c$ t$e revocation o( &etitionerHs &ermit ,as not tainte! ,it$ an' grave ab%se o( !iscretion. GBDC asserte! t$at t$e e4ec%tive or!er an! t$e resol%tion in .%estion ,ere .%asiD 9%!icial acts an! not mere e4ercises o( &olice &o,er. *t .%estione! res&on!entsH (ail%re to observe !%e &rocess in revo+ing t$e &ermit an! c$allenge! t$e legalit' o( t$e collection o( t$e mar+et an! entrance (ees b' t$e m%nici&alit'.
1/

2$e a%t$orit' o( t$e Ma'or to revo+e a &ermit $e iss%e! is &remise! on a violation b' t$e grantee o( an' o( t$e con!itions (or ,$ic$ t$e &ermit $a! been grante!. -es&on!ents claime! t$at &etitioner $a! violate! t$e &rovisions o( )ection 1#D5G;b< o( t$e Balanga -even%e Co!e ,$en it (aile! to in(orm t$e Ma'or t$at t$e lot in controvers' ,as t$e s%b9ect o( a!verse claims (or ,$ic$ a civil case ,as (ile!. )ection 1#D5G;b< o( t$e Balanga -even%e Co!e rea!s: ;b< 2$e a&&lication (or a Ma'orHs &ermit s$all state t$e name resi!ence an! citiBens$i& o( ;sic< t$e a&&licantHs (%ll !escri&tion o( t$e b%siness t$e &artic%lar &lace ,$ere ;sic< t$e same s$all be con!%cte! an! s%c$ ot$er &ertinent in(ormation an! !ate ;sic< as an' ;sic< be re.%ire!. *( t$e a&&licant !eliberatel' ma+es a (alse statement in t$e a&&lication (orm t$e M%nici&al Ma'or ma' revo+e t$e &ermit an! t$e a&&licant ma' be &rosec%te! an! &enaliBe! in accor!ance ,it$ t$e &ertinent &rovisions o( &enal la,s. *n case a &erson !esires to con!%ct t$e same +in! or line o( b%siness in anot$er &lace ,it$in t$e M%nici&alit' in a!!ition to or asi!e (rom t$e establis$ment s&eci(ie! in $is &ermit $e s$all sec%re a se&arate &ermit (or eac$ b%siness an! &a' t$e corres&on!ing (ee im&ose! in t$is article. *( a &erson !esires to engage in more t$an one +in! or line o( b%siness $e s$all &a' t$e (ee im&ose! on eac$ se&arate b%siness not,it$stan!ing t$e (act t$at $e ma' con!%ct or o&erate all !istinct b%siness ;sic< tra!es or occ%&ation in one &lace onl' ;$< -evocation o( =ermit. S 2$e M%nici&al Ma'or ma' revo+e a &ermit in e((ect close t$e establis$ment %&on a violation o( e4isting or!inance reg%lating b%siness establis$ments or an' &rovisions o( t$is article in a!!ition to t$e (ine an! im&risonment t$at t$e' ;sic< ma' be im&ose! b' t$e co%rt (or violation o( t$is article -es&on!ents claim t$at &etitioner ;1< !eliberatel' ma!e a (alse statement in t$e a&&lication (orm ,$en it (aile! to &rovi!e t$e in(ormation t$at t$eir &lace o( b%siness is t$e s%b9ect o( a!verse claimsA an! ;/< (aile! to a&&l' (or t,o se&arate &ermits (or t$e t,o lines o( b%siness it &ro&ose! to engage in. 2$e a&&lication (or Ma'orHs &ermit in t$e case at benc$ re.%ires t$e a&&licant to state ,$at t'&e o( "b%siness" &ro(ession occ%&ation an!?or calling &rivileges" is being a&&lie! (or. =etitioner le(t t$is entr' ban+ in its a&&lication (orm ;-ollo &. 1/0<. *t is onl' in t$e Ma'orHs &ermit itsel( t$at &etitionerHs lines o( b%siness a&&ear ,$ic$ in t$is case are t,o se&arate t'&es one as real estate !ealer an! anot$er as &%blic mar+et o&erator. 2$e &ermit s$o%l! not $ave been iss%e! ,it$o%t t$e re.%ire! in(ormation given in t$e a&&lication (orm itsel(. -evo+ing t$e &ermit $o,ever beca%se o( a (alse statement in t$e a&&lication (orm cannot be 9%sti(ie! %n!er t$e a(orementione! &rovision. 2$ere m%st be &roo( o( ,ill(%l misre&resentation an! !eliberate intent to ma+e a (alse statement. Goo! (ait$ is al,a's &res%me! an! as it $a&&ene! &etitioner !i! not ma+e an' (alse statement in t$e &ertinent entr'. Neit$er ,as &etitionerHs a&&l'ing (or t,o b%sinesses in one &ermit a gro%n! (or revocation. 2$e .%estion o( o,ners$i& over Lot /G1DB $a! alrea!' been settle! ,it$ (inalit' b' t$e )%&reme Co%rt in 1881 in G.-. No. G///1. 3ntr' o( 9%!gment ,as li+e,ise ma!e in t$e same 'ear. 6$en t$e Ma'orHs &ermit ,as revo+e! on Febr%ar' 18 1888 (ive 'ears $a! alrea!' ela&se! since t$e case ,as !eci!e!. =etitioner ,as able to s%rve' t$e lan! an! $ave t$e s%rve' a&&rove! on Marc$ /1 1880 ;-ollo &&. 1CD1G< an! on 7an%ar' 11 1888 &etitioner obtaine! in its name 2C2 No. 1/51C/ ",it$o%t an' memoran!%m o( enc%mbrance or enc%mbrances &ertaining to an' !ecision ren!ere! in an' civil case" Clearl' (or all intents an! &%r&oses &etitioner a&&eare! to be t$e tr%e o,ner o( Lot /G1DBDGD#D1 ,$en res&on!ents revo+e! its &ermit to engage! in b%siness on its o,n lan!. #ss%ming arg%en!o t$at Lot /G1DBDGD#D1 ,as act%all' one o( t$ose a,ar!e! to t$e &lainti((s in Civil Case No. 1851 an! t$e 2rans(er Certi(icate o( 2itle o( &etitioner is s&%rio%s t$is still !oes not 9%sti(' t$e revocation o( t$e Ma'orHs &ermit. # close scr%tin' o( t$e recor!s reveals t$at t$e )angg%niang Ba'an !i! not establis$ or maintain an' &%blic mar+et on t$e s%b9ect lot. 2$e resol%tion merel' mentione! t$e &lan to ac.%ire t$e lot (or e4&ansion o( t$e &%blic mar+et a!9acent t$ereto. @ntil e4&ro&riation &rocee!ings are instit%te! in co%rt t$e lan!o,ner cannot be !e&rive! o( its rig$t over t$e lan!.
11

O( co%rse t$e )angg%niang Ba'an $as t$e !%t' in t$e e4ercise o( its &olice &o,ers to reg%late an' b%siness s%b9ect to m%nici&al license (ees an! &rescribe t$e con!itions %n!er ,$ic$ a m%nici&al license alrea!' iss%e! ma' be revo+e! ;B.=. Blg. 117 )ec. 108 U1V UrV<. B%t t$e "an4iet' %ncertaint' restiveness" among t$e stall$ol!ers an! tra!ers cannot be a vali! gro%n! (or revo+ing t$e &ermit o( &etitioner. #(ter all t$e stall$ol!ers an! tra!ers ,ere !oing b%siness on &ro&ert' not belonging to t$e M%nici&al government. *n!ee! t$e claim t$at t$e e4ec%tive or!er an! resol%tion ,ere meas%res "!esigne! to &romote &eace an! or!er an! &rotect t$e general ,el(are o( t$e &eo&le o( Balanga" is too amor&$o%s an! convenient an e4c%se to 9%sti(' res&on!entsH acts ;Killacorta v. Bernar!o 101 )C-# 085 U188GV<. *n vie, o( t$e %n!is&%te! (act t$at t$e res&on!ent M%nici&alit' is not t$e o,ner o( Lot /G1DBDGD#D1 t$en t$ere is no legal basis (or it to im&ose an! collect mar+et (ees an! mar+et entrance (ees. Onl' t$e o,ner $as t$e rig$t to !o so. 'ano v. (ocrates Facts: )angg%niang =anl%ngso! ng =%erto =rincesa Cit' enacte! Or!inance No. 1CD8/ ,$ic$ banne! t$e s$im&ment o( live (is$a an! lobster o%tsi!e =%erto =rincesa Cit' (rom 51 7an 1881D1888. 6$ile t$e )angg%niang =anlala,igan =rovincial Government o( =ala,an enacte! -esol%tion No. 11 ,$ic$ &ro$ibite! t$e catc$ing gat$ering &ossessing b%'ing selling an! s$i&ment o( love marine coral !,elling a.%atic organisms (or a &erio! o( C 'ears in an! coming (rom =ala,an ,aters. Or!inance No. / Or!inance =ro$ibiting t$e catc$ing gat$ering &ossessing b%'ing selling an! s$i&ment o( live marine coral !,elling a.%atic organisms ,as also enacte!. 2$e res&on!ents im&lemente! t$e sai! or!inances !e&riving all t$e (is$ermen o( t$e ,$ole &rovince o( =ala,an an! t$e Cit' o( =%erto =rincesa o( t$eir onl' means o( liveli$oo! an! t$e &etitioners #irline )$i&&ers #ssociation o( =ala,an an! ot$er marine merc$ants (rom &er(orming t$eir la,(%l occ%&ation an! tra!e. =etitioners #l(re!o 2ano Bal!omero 2ano 2eocenes Mi!ello #ngel !e Mesa 3%logio 2remoc$a an! Feli&e Ongonion 7r. ,ere c$arge! criminall' on t$e basis o( t$e or!inances. 2$e &etitioners (ile! t$is action claiming t$at (irst t$e Or!inances !e&rive! t$em o( !%e &rocess o( la, t$eir liveli$oo! an! %n!%l' restricte! t$em (rom t$e &ractice o( t$eir tra!e in violation o( )ection / #rticle J** an! )ections / an! 7 o( #rticle J*** o( t$e 1887 Constit%tion. )econ! O((ice Or!er No. /1 containe! no reg%lation nor con!ition %n!er ,$ic$ t$e Ma'or>s &ermit co%l! be grante! or !enie!A in ot$er ,or!s t$e Ma'or $a! t$e absol%te a%t$orit' to !etermine ,$et$er or not to iss%e &ermit. 2$ir! as t$e Or!inance No. / altoget$er &ro$ibite! t$e catc$ing gat$ering &ossession b%'ing selling an! s$i&&ing o( live marine coral !,elling organisms ,it$o%t an' !istinction ,$et$er it ,as ca%g$t or gat$ere! t$ro%g$ la,(%l (is$ing met$o! t$e Or!inance too+ a,a' t$e rig$t o( &etitionersD(is$ermen to earn t$eir liveli$oo! in la,(%l ,a's. Finall' as Or!inance No. / o( t$e )angg%niang =anlala,igan is n%ll an! voi! t$e criminal cases base! t$ereon against &etitioners 2ano an! t$e ot$ers $ave to be !ismisse!. Governor )ocrates an! Members o( t$e )angg%niang =anlala,igan o( =ala,an !e(en!e! t$e vali!it' o( Or!inance No./ as a vali! e4ercise o( t$e =rovincial Government &o,er %n!er t$e general ,el(are cla%se ;)ection 1G o( t$e LGC o( 1881 U$erea(ter LGCV< an! its s&eci(ic &o,er to &rotect t$e environment an! im&ose a&&ro&riate &enalties (or acts ,$ic$ en!anger t$e environment s%c$ as !'namite (is$ing an! ot$er (orms o( !estr%ctive (is$ing %n!er )ection 007 ;a< ;1< ;vi< )ection 0C8 ;a< ;1< ;vi< an! )ection 0G8 ;a< ;1< ;vi< o( t$e LGC. 2$e' claime! t$at in t$e e4ercise o( s%c$ &o,ers t$e =rovince o( =ala,an $a! t$e rig$t an! res&onsibilt' to ins%re t$at t$e remaining coral ree(s ,$ere (is$ !,ells UsicV ,it$in its territor' remain $ealt$' (or t$e (%t%re generation. 2$e Or!inance t$e' (%rt$er asserte! covere! onl' live marine coral !,elling a.%atic organisms ,$ic$ ,ere en%merate! in t$e or!inance an! e4cl%!e! ot$er +in!s o( live marine a.%atic organisms not !,elling in coral ree(sA besi!es t$e &ro$ibition ,as (or onl' (ive ;C< 'ears to &rotect an! &reserve t$e &ristine coral an! allo, t$ose !amage! to regenerate. 2$e' li+e,ise maintaine! t$at t$ere ,as no violation o( !%e &rocess an! e.%al &rotection cla%ses o( t$e Constit%tion. #s to t$e (ormer &%blic $earings ,ere con!%cte! be(ore t$e enactment o( t$e Or!inance ,$ic$ %n!o%bte!l' $a! a la,(%l &%r&ose an! em&lo'e! reasonable meansA ,$ile as to t$e latter a s%bstantial !istinction e4iste! bet,een a (is$erman ,$o catc$es live (is$ ,it$ t$e intention o( selling it live an! a (is$erman ,$o catc$es live (is$ ,it$ no intention at all o( selling it live i.e. t$e (ormer %ses so!i%m c'ani!e ,$ile t$e latter !oes not. F%rt$er t$e Or!inance a&&lie! e.%all' to all t$ose belonging to one class.
10

2$ere are act%all' t,o sets o( &etitioners in t$is case. 2$e &rimar' interest o( t$e (irst set o( &etitioners is to &revent t$e &rosec%tion trial an! !etermination o( t$e criminal cases %ntil t$e constit%tionalit' or legalit' o( t$e Or!inances t$e' allege!l' violate! s$all $ave been resolve!. 2$e secon! set o( &etitioners merel' claim t$at t$e' being (is$ermen or marine merc$ants t$e' ,o%l! be a!versel' a((ecte! b' t$e or!inances. 2$e &etitioners claim t$at as s%bsistence or marginal (is$ermen t$e' are entitle! to t$e &rotection o( t$e )tate as ens$rine! in )ection / o( #rticle J** o( t$e Constit%tion. *ss%e: t$eir en9o'ment ma' be g%arantee! not onl' (or t$e &resent generation b%t also (or t$e generations to come. 2$e soDcalle! "&re(erential rig$t" o( s%bsistence or marginal (is$ermen to t$e %se o( marine reso%rces is not at all absol%te. *n accor!ance ,it$ t$e -egalian Doctrine marine reso%rces belong to t$e )tate an! &%rs%ant to t$e (irst &aragra&$ o( )ection / #rticle J** o( t$e Constit%tion t$eir "e4&loration !evelo&ment an! %tiliBation . . . s$all be %n!er t$e (%ll control an! s%&ervision o( t$e )tate." 6$et$er t$e or!inances in .%estion are %nconstit%tionalT NO. Moreover )ection C;c< o( t$e LGC e4&licitl' man!ates t$at t$e general ,el(are &rovisions o( t$e LGC "s$all be liberall' inter&rete! to give more &o,ers to t$e LG@s in accelerating economic !evelo&ment an! %&gra!ing t$e .%alit' o( li(e (or t$e &eo&le o( t$e comm%nit'." 2$e LGC vests m%nici&alities ,it$ t$e &o,er to grant (is$er' &rivileges in m%nici&al ,aters an! im&ose rentals (ees or c$arges t$ere(orA to &enaliBe b' a&&ro&riate or!inances t$e %se o( e4&losives no4io%s or &oisono%s s%bstances electricit' m%roDami an! ot$er !eleterio%s met$o!s o( (is$ingA an! to &rosec%te an' violation o( t$e &rovisions o( a&&licable (is$er' la,s. F%rt$er t$e sangg%niang ba'an t$e sangg%niang &anl%ngso! an! t$e sangg%niang &anlala,igan are !irecte! to enact or!inances (or t$e general ,el(are o( t$e m%nici&alit' an! its in$abitants ,$ic$ s$all incl%!e inter alia or!inances t$at "U&Vrotect t$e environment an! im&ose a&&ro&riate &enalties (or acts ,$ic$ en!anger t$e environment s%c$ as !'namite (is$ing an! ot$er (orms o( !estr%ctive (is$ing . . . an! s%c$ ot$er activities ,$ic$ res%lt in &oll%tion acceleration o( e%tro&$ication o( rivers an! la+es or o( ecological imbalance." Finall' t$e center&iece o( LGC is t$e s'stem o( !ecentraliBation as e4&ressl' man!ate! b' t$e Constit%tion.. *n!is&ensable to !ecentraliBation is !evol%tion an! t$e LGC e4&ressl' &rovi!es t$at "UaVn' &rovision on a &o,er o( a LG@ s$all be liberall' inter&rete! in its (avor an! in case o( !o%bt an' .%estion t$ereon s$all be resolve! in (avor o( !evol%tion o( &o,ers an! o( t$e lo,er LG@. #n' (air an! reasonable !o%bt as to t$e e4istence o( t$e &o,er s$all be inter&rete! in (avor o( t$e LG@ concerne!." Devol%tion re(ers to t$e act b' ,$ic$ t$e National Government con(ers
1.
1. 6$et$er &etitioners are s%bsistence or marginal
(is$ermenT NO. )ince t$e Constit%tion !oes not s&eci(icall' &rovi!e a !e(inition o( t$e terms "s%bsistence" or "marginal" (is$ermen t$e' s$o%l! be constr%e! in t$eir general an! or!inar' sense. # marginal (is$erman is an in!ivi!%al engage! in (is$ing ,$ose margin o( ret%rn or re,ar! in $is $arvest o( (is$ as meas%re! b' e4isting &rice levels is barel' s%((icient to 'iel! a &ro(it or cover t$e cost o( gat$ering t$e (is$ ,$ile a s%bsistence (is$erman is one ,$ose catc$ 'iel!s b%t t$e irre!%cible minim%m (or $is liveli$oo!. )ection 111;&< o( t$e LGC ;-.#. No. 71G5< !e(ines a marginal (armer or (is$erman as "an in!ivi!%al engage! in s%bsistence (arming or (is$ing ,$ic$ s$all be limite! to t$e sale barter or e4c$ange o( agric%lt%ral or marine &ro!%cts &ro!%ce! b' $imsel( an! $is imme!iate (amil'." *t bears re&eating t$at not$ing in t$e recor! s%&&orts a (in!ing t$at an' &etitioner (alls ,it$in t$ese !e(initions. Besi!es )ection / o( #rticle J** aims &rimaril' not to besto, an' rig$t to s%bsistence (is$ermen b%t to la' stress on t$e !%t' o( t$e )tate to &rotect t$e nationHs marine ,ealt$. 6$at t$e &rovision merel' recogniBes is t$at t$e )tate ma' allo, b' la, coo&erative (is$ (arming ,it$ &riorit' to s%bsistence (is$ermen an! (is$,or+ers in rivers la+es ba's an! lagoons. #nent )ection 7 o( #rticle J*** it s&ea+s not onl' o( t$e %se o( comm%nal marine an! (is$ing reso%rces b%t o( t$eir &rotection !evelo&ment an! conservation. #s $erea(ter s$o,n t$e or!inances in .%estion are meant &recisel' to &rotect an! conserve o%r marine reso%rces to t$e en! t$at
1C

&o,er an! a%t$orit' %&on t$e vario%s LG@s to &er(orm s&eci(ic (%nctions an! res&onsibilities. *n lig$t t$en o( t$e &rinci&les o( !ecentraliBation an! !evol%tion ens$rine! in t$e LGC an! t$e &o,ers grante! t$erein to LG@s %n!er )ection 1G ;t$e General 6el(are Cla%se< an! %n!er )ections 108 007;a< ;1< ;vi< 0C8 ;a< ;1< ;vi< an! 0G8 ;a< ;1< ;vi< ,$ic$ %n.%estionabl' involve t$e e4ercise o( &olice &o,er t$e vali!it' o( t$e .%estione! Or!inances cannot be !o%bte!. =arent$eticall' ,e ,is$ to a!! t$at t$ese Or!inances (in! (%ll s%&&ort %n!er -.#. No. 7G11 ot$er,ise +no,n as t$e )trategic 3nvironmental =lan ;)3=< (or =ala,an #ct a&&rove! on 18 7%ne 188/. 2$is stat%te a!o&ts a "com&re$ensive (rame,or+ (or t$e s%stainable !evelo&ment o( =ala,an com&atible ,it$ &rotecting an! en$ancing t$e nat%ral reso%rces an! en!angere! environment o( t$e &rovince". *t is clear to t$e Co%rt t$at t$e Or!inances $ave t,o &rinci&al ob9ectives or &%r&oses: ;1< to establis$ a "close! season" (or t$e s&ecies o( (is$ or a.%atic animals covere! t$erein (or a &erio! o( (ive 'earsA an! ;/< to &rotect t$e coral in t$e marine ,aters o( t$e Cit' o( =%erto =rincesa an! t$e =rovince o( =ala,an (rom (%rt$er !estr%ction !%e to illegal (is$ing activities. 2$e accom&lis$ment o( t$e (irst ob9ective is ,ell ,it$in t$e !evolve! &o,er to en(orce (is$er' la,s in m%nici&al ,aters s%c$ as =.D. No. 151C ,$ic$ allo,s t$e establis$ment o( "close! seasons." 2$e !evol%tion o( s%c$ &o,er $as been e4&ressl' con(irme! in t$e Memoran!%m o( #greement o( C #&ril 1880 bet,een t$e De&artment o( #gric%lt%re an! t$e De&artment o( *nterior an! Local Government. 2$e realiBation o( t$e secon! ob9ective clearl' (alls ,it$in bot$ t$e general ,el(are cla%se o( t$e LGC an! t$e e4&ress man!ate to cities an! &rovinces to &rotect t$e environment an! im&ose a&&ro&riate &enalties (or acts ,$ic$ en!anger t$e environment. 2$ere(ore it is incorrect to sa' t$at t$e c$allenge! Or!inance o( t$e Cit' o( =%erto =rincesa is invali! or %nen(orceable beca%se it ,as not a&&rove! b' t$e )ecretar' o( t$e D3N-. *( at all t$e a&&roval t$at s$o%l! be so%g$t ,o%l! be t$at o( t$e )ecretar' o( t$e De&artment o( #gric%lt%re. Ho,ever t$e re.%irement o( a&&roval b' t$e )ecretar' o( t$e De&artment o( #gric%lt%re ;not D3N-< o( m%nici&al or!inances a((ecting (is$ing an! (is$eries in m%nici&al ,aters $as been !is&ense! ,it$ in vie, o( t$e (ollo,ing reason: ;1< #s !isc%sse! earlier %n!er t$e general ,el(are cla%se o( t$e LGC LG@s $ave t$e &o,er inter alia to enact or!inances to en$ance t$e rig$t o( t$e &eo&le to a balance! ecolog'. *t li+e,ise s&eci(icall' vests m%nici&alities ,it$ t$e &o,er to grant (is$er' &rivileges in m%nici&al ,aters an! im&ose rentals (ees or c$arges t$ere(orA to &enaliBe b' a&&ro&riate or!inances t$e %se o( e4&losives no4io%s or &oisono%s s%bstances electricit' m%roDami an! ot$er !eleterio%s met$o!s o( (is$ingA an! to &rosec%te an' violation o( t$e &rovisions o( a&&licable (is$er' la,s. Finall' it im&oses %&on t$e sangg%niang ba'an t$e sangg%niang &anl%ngso! an! t$e sangg%niang &anlala,igan t$e !%t' to enact or!inances to "U&Vrotect t$e environment an! im&ose a&&ro&riate &enalties (or acts ,$ic$ en!anger t$e environment s%c$ as !'namite (is$ing an! ot$er (orms o( !estr%ctive (is$ing . . . an! s%c$ ot$er activities ,$ic$ res%lt in &oll%tion acceleration o( e%tro&$ication o( rivers an! la+es or o( ecological imbalance.
1G
17
18
(angalang v. )AC Facts: )t%!ies ,ere ma!e b' Ma'or :ab%t et al on t$e (easibilit' o( o&ening streets in BelD#ir calc%late! to alleviate tra((ic congestion along t$e &%blic streets a!9acent to BelD#ir. Base! on t$e st%!ies it ,as !eeme! necessar' in t$e interest o( t$e general &%blic to o&en to tra((ic #ma&ola Merce!es Zo!ia 7%&iter Ne&t%ne Orbit an! =aseo !e -o4as streets. #ccor!ing to BelD#ir t$e' o,n t$e streets an! as s%c$ s$o%l! not be !e&rive! o( t$em ,it$o%t 9%st com&ensation. *ss%e: 6ON t$e ma'or acte! arbitraril' in o&ening %& 7%&iter an! Orbit streets. NO.
18

2$e o&ening o( 7%&iter ,as ,arrante! b' t$e !eman!s o( t$e common goo! in terms o( tra((ic !econgestion an! &%blic convenience. 2$e same is %&$el! in t$e case o( Orbit street. 2$ere is not merit in B#K#>s claims t$at t$e !emolition o( t$e gates at Orbit an! 7%&iter amo%nts to !e&rivation o( &ro&ert' ,it$o%t !%e &rocess o( la, or e4&ro&riation ,it$o%t 9%st com&ensation. 2$ere is no ta+ing involve! in t$is case. 2$e act o( t$e ma'or is in t$e conce&t o( &olice &o,er. =#)3* v. Drilon: =olice =o,er: state a%t$orit' to enact legislation t$at ma' inter(ere ,it$ &ersonal libert' or &ro&ert' in or!er to &romote t$e general ,el(are. Consists o(: 1. #n im&osition o( restraint %&on libert' or &ro&ert' /. *n or!er to (oster t$e common goo! 2$e &olice &o,er o( t$e state is a &o,er coe4tensive ,it$ sel(D&rotection an! it is not ina&tl' terme! t$e la, o( over,$elming necessit'. *t ma' be sai! to be t$at in$erent an! &lenar' &o,er in t$e state ,$ic$ enables it to &ro$ibit all t$ings $%rt(%l to t$e com(ort sa(et' an! ,el(are o( societ'. Bill o( rig$ts: even libert' itsel( t$e greatest o( all rig$ts is not %nrestricte! license to act accor!ingl' to one>s ,ill. *t is s%b9ect to t$e (ar more overri!ing !eman!s an! re.%irements o( t$e greater n%mber. Ho,ever it ma' not be !one arbitraril' or %nreasonabl'. B%r!en o( s$o,ing t$at it is %n9%sti(ie! lies on aggrieve! &art'. *n t$e case at bar. B#K# $as (aile! to s$o, t$at t$e o&ening ,as %n9%sti(ie! or t$at t$e ma'or acte! %nreasonabl'. #rt. 751: s%mmar' abatement ma' be carrie! o%t b' t$e ma'or $imsel( Cabrera v. CA Facts: 2$e =rovincial Boar! o( Catan!%anes a!o&te! -esol%tion No. 1C8 closing t$e ol! roa! lea!ing to t$e ne, Ca&itol B%il!ing o( t$is &rovince to tra((ic an! giving t$e o,ners o( t$e &ro&erties traverse! b' t$e ne, roa! e.%al area as &er s%rve' b' t$e Hig$,a' District 3ngineerHs o((ice (rom t$e ol! roa! a!9acent to t$e res&ective remaining &ortion o( t$eir &ro&erties. =%rs%ant t$ereto Dee!s o( 34c$ange ,ere e4ec%te! %n!er ,$ic$ t$e =rovince o( Catan!%anes conve'e! to -eme!ios -. Baga!iong Fre!es,in!o F. #lcala 3lena ). Latorre Bal!omero 2olentino 3%logia 2. #le9an!ro #ngeles ). Kargas an! 7%an ). -e'es &ortions o( t$e close! roa! in e4c$ange (or t$eir o,n res&ective &ro&erties on ,$ic$ ,as s%bse.%entl' lai! a ne, concrete roa! lea!ing to t$e Ca&itol B%il!ing. *n 1878 &art o( t$e nort$ern en! o( t$e ol! roa! (ronting t$e &etitionerHs $o%se ,as &lante! to vegetables in 1877 b' 3%logia #le9an!ro. #nselmo =eRa ,$o $a! bo%g$t #ngeles KargasHs s$are also in t$e same &art o( t$e roa! converte! it into a &igger' (arm. Learning abo%t -esol%tion 1C8 t$e &etitioner (ile! on December /8 1878 a com&laint ,it$ t$e Co%rt o( First *nstance o( Catan!%anes (or "-estoration o( =%blic -oa! an!?or #batement o( N%isance #nn%lment o( -esol%tions an! Doc%ments ,it$ Damages." He allege! t$at t$e lan! (ronting $is $o%se ,as a &%blic roa! o,ne! b' t$e =rovince o( Catan!%anes in its governmental ca&acit' an! t$ere(ore be'on! t$e commerce o( man. He conten!e! t$at -esol%tion No. 1C8 an! t$e !ee!s o( e4c$ange ,ere invali! as so too ,as t$e clos%re o( t$e nort$ern &ortion o( t$e sai! roa!. *n a !ecision !ate! November /1 1885 7%!ge Graciano =. Ga'a&a 7r. ,$ile $ol!ing t$at t$e lan! in .%estion ,as not a !eclare! &%blic roa! b%t a mere "&assage,a'" or "s$ortDc%t " nevert$eless s%staine! t$e a%t$orit' o( t$e &rovincial boar! to enact -esol%tion No. 1C8 %n!er e4isting la,. 1 #&&eal ,as ta+en to t$e res&on!ent co%rt / ,$ic$ (o%n! t$at t$e roa! ,as a &%blic roa! an! not a trail b%t 9%st t$e same also %&$el! -esol%tion 1C8. *t !eclare!: =%rs%ant to -e&%blic #ct No. C18C m%nici&al a%t$orities can close s%b9ect to t$e a&&roval or !irection o( t$e =rovincial Boar! t$oro%g$(ares %n!er )ection //0G o( t$e -evise! #!ministrative Co!e. #lt$o%g$ in t$is case t$e roa! ,as not close! b' t$e m%nici&alit' o( Catan!%anes b%t b' t$e &rovincial boar! o( Catan!%anes t$e clos%re nevert$eless is vali! since it ,as or!ere! b' t$e a&&roving a%t$orit' itsel(. Ho,ever ,$ile it co%l! !o so t$e &rovincial government o( Catan!%anes co%l! close t$e roa! onl' i( t$e &ersons &re9%!ice! t$ereb' ,ere in!emni(ie! )ection //0G o( t$e -evise! #!ministrative Co!e being ver' e4&licit on t$is. Be(ore %s no, t$e &etitioner insists t$at )ec. //0G is not a&&licable beca%se -esol%tion No. 1C8 is not an or!er (or t$e clos%re o( t$e roa! in .%estion b%t an a%t$orit' to barter or e4c$ange it ,it$ &rivate &ro&erties. He maintains t$at t$e &%blic roa! ,as o,ne! b' t$e &rovince in its governmental ca&acit' an! ,it$o%t a &rior or!er o( clos%re co%l! not be t$e s%b9ect o( a barter. Control over &%blic roa!s $e insists is ,it$ Congress an! not ,it$ t$e &rovincial boar!.
05

2$e &etitioner alleges t$at t$e clos%re o( t$e roa! $as es&eciall' in9%re! $im an! $is (amil' as t$e' can no longer %se it in going to t$e national roa! lea!ing to t$e ol! ca&itol b%il!ing b%t m%st instea! &ass t$ro%g$ a small &assage,a'. For s%c$ inconvenience $e is entitle! to !amages in accor!ance ,it$ la,. *ss%e: 6ON t$e &rovincial boar! can or!er t$e clos%re o( a roa! an! %se? conve' it (or ot$er &%r&oses. :3). 2$e a%t$orit' o( t$e &rovincial boar! to close t$at roa! an! %se or conve' it (or ot$er &%r&oses is !erive! (rom t$e (ollo,ing &rovisions o( -e&%blic #ct No. C18C in relation to )ection //0G o( t$e -evise! #!ministrative Co!e: -.#. No. C18C )ection 11 ;**< ;a<: **. 2$e (ollo,ing actions b' m%nici&al o((icials or m%nici&al co%ncils as &rovi!e! (or in t$e &ertinent sections o( t$e -evise! #!ministrative Co!e s$all ta+e e((ect ,it$o%t t$e nee! o( a&&roval or !irection (rom an' o((icial o( t$e national government: =rovi!e! 2$at s%c$ actions s$all be s%b9ect to a&&roval or !irection b' t$e =rovincial Boar!: ;a< #%t$orit' to close t$oro%g$(are %n!er )ection //0GA )ec. //0G. #%t$orit' to close t$oro%g$(are. S 6it$ t$e &rior a%t$oriBation o( t$e De&artment Hea! a m%nici&al co%ncil ma' close an' m%nici&al roa! street alle' &ar+ or s.%areA b%t no s%c$ ,a' or &lace a(oresai! or an' &art t$ereo( s$all be close! ,it$o%t in!emni('ing an' &erson &re9%!ice! t$ereb'. =ro&ert' t$%s ,it$!ra,n (rom &%blic servit%!e ma' be %se! or conve'e! (or an' &%r&ose (or ,$ic$ ot$er real &ro&ert' belonging to t$e m%nici&alit' mig$t be la,(%ll' %se! or conve'e!. Ceb% O4'gen an! #cet'lene Co. *nc. v. Bercilles: clos%re o( a cit' street is ,it$in t$e &o,ers o( t$e cit' co%ncil %n!er t$e -evise! C$arter o( Ceb% Cit'. *t s%staine! t$e s%bse.%ent sale o( t$e lan! as being in accor!ance not onl' ,it$ t$e c$arter b%t also ,it$ #rticle 0// o( t$e Civil Co!e ,$ic$ &rovi!es: "=ro&ert' o( &%blic !ominion ,$en no longer inten!e! (or &%blic %se or (or &%blic service s$all (orm &art o( t$e &atrimonial &ro&ert' o( t$e )tate." Favis vs. Cit' o( Bag%io: a&&ellant ma' not c$allenge t$e cit' co%ncilHs act o( ,it$!ra,ing a stri& o( La&%DLa&% )treet at its !ea! en! (rom &%blic %se an! converting t$e remain!er t$ereo( into an alle'. 2$ese are acts ,ell ,it$in t$e ambit o( t$e &o,er to close a cit' street. 2$e cit' co%ncil it ,o%l! seem to %s is t$e a%t$orit' com&etent to !etermine ,$et$er or not a certain &ro&ert' is still necessar' (or &%blic %se. )%c$ &o,er to vacate a street or alle' is !iscretionar'. #n! t$e !iscretion ,ill not or!inaril' be controlle! or inter(ere! ,it$ b' t$e co%rts absent a &lain case o( ab%se or (ra%! or coll%sion. Fait$(%lness to t$e &%blic tr%st ,ill be &res%me!. )o t$e (act t$at some &rivate interests ma' be serve! inci!entall' ,ill not invali!ate t$e vacation or!inance. 6$ile it is tr%e t$at t$e above cases !ealt ,it$ cit' co%ncils an! not t$e &rovincial boar! t$ere is no reason (or not a&&l'ing t$e !octrine anno%nce! t$erein to t$e &rovincial boar! in connection ,it$ t$e clos%re o( &rovincial roa!s. 2$e &rovincial boar! $as a(ter all t$e !%t' o( maintaining s%c$ roa!s (or t$e com(ort an! convenience o( t$e in$abitants o( t$e &rovince. Moreover t$is a%t$orit' is in(erable (rom t$e grant b' t$e national legislat%re o( t$e (%n!s to t$e =rovince o( Catan!%anes (or t$e constr%ction o( &rovincial roa!s. 2$e lo,er co%rt (o%n! t$e &etitionerHs allegation o( in9%r' an! &re9%!ice to be ,it$o%t basis beca%se $e $a! "eas' access an',a' to t$e national roa! (or in (act t$e ve$icles %se! b' t$e Co%rt an! t$e &arties !%ring t$e oc%lar ins&ection easil' &asse! an! %se! it reac$ing be'on! &lainti((Hs $o%se." Ho,ever t$e C# r%le! t$at t$e $e ",as &re9%!ice! b' t$e clos%re o( t$e roa! ,$ic$ (ormerl' (ronte! $is $o%se. He an! $is (amil' ,ere %n!o%bte!l' inconvenience! b' t$e loss o( access to t$eir &lace o( resi!ence (or ,$ic$ ,e believe t$e' s$o%l! be com&ensate!." Favis: 2$e general r%le is t$at one ,$ose &ro&ert' !oes not ab%t on t$e close! section o( a street $as no rig$t to com&ensation (or t$e closing or vacation o( t$e street i( $e still $as reasonable access to t$e general s'stem o( streets. 2$e circ%mstances in some cases ma' be s%c$ as to give a rig$t to !amages to a &ro&ert' o,ner even t$o%g$ $is &ro&ert' !oes not ab%t on t$e close! section. B%t to ,arrant recover' in an' s%c$ case t$e &ro&ert' o,ner m%st s$o, t$at t$e sit%ation is s%c$ t$at $e $as s%staine! s&ecial !amages !i((ering in +in! an! not merel' in !egree (rom t$ose s%staine! b' t$e &%blic generall'. -ic$mon! v. Cit' o( Hinton : 2$e Constit%tion !oes not %n!erta+e to g%arantee to a &ro&ert' o,ner t$e &%blic
01

maintenance o( t$e most convenient ro%te to $is !oor. 2$e la, ,ill not &ermit $im to be c%t o(( (rom t$e &%blic t$oro%g$(ares b%t $e m%st content $imsel( ,it$ s%c$ ro%te (or o%tlet as t$e reg%larl' constit%te! &%blic a%t$orit' ma' !eem most com&atible ,it$ t$e &%blic ,el(are. 6$en $e ac.%ires cit' &ro&ert' $e !oes so in tacit recognition o( t$ese &rinci&les. *( s%bse.%ent to $is ac.%isition t$e cit' a%t$orities aban!on a &ortion o( t$e street to ,$ic$ $is &ro&ert' is not imme!iatel' a!9acent $e ma' s%((er loss beca%se o( t$e inconvenience im&ose! b%t t$e &%blic treas%r' cannot be re.%ire! to recom&ense $im. )%c$ case is !amn%m abs.%e in9%ria. &etitioner is not entitle! to !amages beca%se t$e in9%r' $e $as inc%rre! s%c$ as it is is t$e &rice $e an! ot$ers li+e $im m%st &a' (or t$e ,el(are o( t$e entire comm%nit'. 2$is is not a case ,$ere $is &ro&ert' $as been e4&ro&riate! an! $e is entitle! to 9%st com&ensation. 2$e constr%ction o( t$e ne, roa! ,as %n!erta+en %n!er t$e general ,el(are cla%se. #s t$e trial 9%!ge ac%tel' observe! ,$atever inconvenience t$e &etitioner $as s%((ere! "&ales in signi(icance com&are! to t$e greater convenience t$e ne, roa! ,$ic$ is ,i!e an! concrete straig$t to t$e veterans (o%ntain an! !o,n to t$e &ier $as been giving to t$e &%blic &l%s t$e (act t$at t$e ne, roa! a!!s bea%t' an! color not onl' to t$e to,n o( Kirac b%t also to t$e ,$ole &rovince o( Catan!%anes." For t$e en9o'ment o( t$ose bene(its ever' in!ivi!%al in t$e &rovince incl%!ing t$e &etitioner m%st be &re&are! to give $is s$are *acana# v. Asistio Facts: MMC Or!inance No. 78D5/ ,as enacte! b' t$e Metro&olitan Manila Commission !esignating certain cit' an! m%nici&al streets roa!s an! o&en s&aces as sites (or (lea mar+ets. =%rs%ant t$ereto t$e Caloocan Cit' ma'or o&ene! %& seven ;7< (lea mar+ets in t$at cit'. One o( t$ose streets ,as t$e "Heroes !el H8G" ,$ere t$e &etitioner lives. @&on a&&lication o( ven!ors t$e res&on!ents cit' ma'or an! cit' engineer iss%e! t$em licenses to con!%ct ven!ing activities on sai! street. #ntonio MartineB as O*C cit' ma'or o( Caloocan Cit' ca%se! t$e !emolition o( t$e mar+et stalls on Heroes !el H8G K. GoBon an! GonBales streets. 2o sto& Ma'or MartineBH e((orts stallo,ners (ile! an action (or &ro$ibition against t$e Cit' o( Caloocan t$e O*C Cit' Ma'or an! t$e Cit' 3ngineer an!?or t$eir !e&%ties &ra'ing t$e co%rt to iss%e a ,rit o( &reliminar' in9%nction or!ering t$ese cit' o((icials to !iscontin%e t$e !emolition o( t$eir stalls !%ring t$e &en!enc' o( t$e action.. LC: =* Grante!. B%t &etition ,as later !ismisse!. ;1< Observe! t$at MMC Or!inance No. 78D5/ e4&ressl' &rovi!es t$at t$e %se o( certain streets as (lee mar+ets are s%b9ect to t$e a&&roval o( t$e Metro&olitan Manila Commission. ;/< Fo%n! t$at Heroes !el H8G GoBon an! GonBales streets are o( &%blic !ominion $ence o%tsi!e t$e commerce o( man. 2$is means t$at t$e' cannot be alienate! or lease! or ot$er,ise be t$e s%b9ect matter o( contracts ;M%nici&alit' o( Cavite vs. -o9as<. )%c$ lease i( ever is n%ll an! voi!. 2$is &rinci&le ,as s%&&orte! b' Cit' o( Manila vs. Gerar!o Garcia ,$ic$ state! t$at: \2$e &ro&ert' being a &%blic one t$e Manila Ma'ors !i! not $ave t$e a%t$orit' to give &ermits ,ritten or oral to t$e s.%atters an! t$at t$e &ermits grante! are t$ere(ore consi!ere! n%ll an! voi!. ;1< O&ine! t$at t$e o((icials $ave t$e rig$t to !emolis$ t$e s%b9ect stalls o( t$e &lainti((s more so !%e to )ection 18C &ar. 0 o( Batas =ambansa Blg. 117 ot$er,ise +no,n as t$e LGC. Ho,ever s$ortl' a(ter t$e LC !ecision came o%t t$e cit' a!ministration in Caloocan Cit' c$ange! $an!s. Cit' Ma'or #sistio 7r. as s%ccessor o( Ma'or MartineB !i! not &%rs%e t$e latterHs &olic' o( clearing an! cleaning %& t$e cit' streets. *nvo+ing t$e trial co%rtHs !ecision in Civil Case No. CD1/8/1 Dacana' ,rote a letter to Ma'or #sistio 7r. calling $is attention to t$e illegall'Dconstr%cte! stalls on Heroes !el H8G )treet an! as+e! (or t$eir !emolition. Follo,e! %& b%t to no avail. Hence t$is case. *ss%e: 6ON &%blic streets or t$oro%g$(ares ma' be lease! or license! to mar+et stall$ol!ers b' virt%e o( a cit' or!inance or resol%tion o( t$e Metro Manila Commission. NO. 2$ere is no !o%bt t$at t$e !is&%te! areas (rom ,$ic$ t$e &rivate res&on!entsH mar+et stalls are so%g$t to be evicte! are &%blic streets as (o%n! b' t$e trial co%rt in Civil Case No. CD1/8/1. # &%blic street is &ro&ert' (or &%blic %se $ence o%tsi!e t$e commerce o( man. Being o%tsi!e t$e commerce o( man it ma' not be t$e s%b9ect o( lease or ot$er contract. #s t$e stall$ol!ers &a' (ees to t$e Cit' Government (or t$e rig$t to occ%&' &ortions o( t$e &%blic street t$e Cit' Government contrar' to la, $as been leasing &ortions o( t$e streets to t$em. )%c$ leases or licenses are n%ll an! voi! (or being contrar' to la,. 2$e rig$t o( t$e &%blic to %se t$e cit' streets ma' not be bargaine! a,a' t$ro%g$
0/

contract. 2$e interests o( a (e, s$o%l! not &revail over t$e goo! o( t$e greater n%mber in t$e comm%nit' ,$ose $ealt$ &eace sa(et' goo! or!er an! general ,el(are t$e res&on!ent cit' o((icials are %n!er legal obligation to &rotect. 2$e 34ec%tive Or!er iss%e! b' #cting Ma'or -obles a%t$oriBing t$e %se o( Heroes !el H8G )treet as a ven!ing area (or stall$ol!ers ,$o ,ere grante! licenses b' t$e cit' government contravenes t$e general la, t$at reserves cit' streets an! roa!s (or &%blic %se. Ma'or -oblesH 34ec%tive Or!er ma' not in(ringe %&on t$e veste! rig$t o( t$e &%blic to %se cit' streets (or t$e &%r&ose t$e' ,ere inten!e! to serve: i.e. as arteries o( travel (or ve$icles an! &e!estrians. Macasiano v. *io:no Facts: =arana.%e &asse! Or!inance No. 8G )eries o( 1885 ,$ic$ a%t$oriBe! t$e clos%re o( 7. Gabriel G.G. Cr%B Ba'ani$an Lt. Garcia 34tension an! O&ena )treets locate! at Baclaran =araRa.%e Metro Manila an! t$e establis$ment o( a (lea mar+et t$ereon. 2$e sai! or!inance ,as a&&rove! b' t$e m%nici&al co%ncil &%rs%ant to MMC Or!inance No. / )eries o( 1878 a%t$oriBing an! reg%lating t$e %se o( certain cit' an!?or m%nici&al streets roa!s an! o&en s&aces ,it$in Metro&olitan Manila as sites (or (lea mar+et an!?or ven!ing areas %n!er certain terms an! con!itions. On 7%l' /5 1885 t$e Metro&olitan Manila #%t$orit' a&&rove! Or!inance No. 8G s. 1885 o( t$e m%nici&al co%ncil o( res&on!ent m%nici&alit' s%b9ect to t$e (ollo,ing con!itions: 1. 2$at t$e a(orename! streets are not %se! (or ve$ic%lar tra((ic an! t$at t$e ma9orit' o( t$e resi!ents !o not o&&ose t$e establis$ment o( t$e (lea mar+et?ven!ing areas t$ereonA /. 2$at t$e /Dmeter mi!!le roa! to be %se! as (lea mar+et?ven!ing area s$all be mar+e! !istinctl' an! t$at t$e / meters on bot$ si!es o( t$e roa! s$all be %se! b' &e!estriansA 1. 2$at t$e time !%ring ,$ic$ t$e ven!ing area is to be %se! s$all be clearl' !esignate!A 0. 2$at t$e %se o( t$e ven!ing areas s$all be tem&orar' an! s$all be close! once t$e reclaime! areas are !evelo&e! an! !onate! b' t$e =%blic 3state #%t$orit'. On 7%ne /5 1885 t$e m%nici&al co%ncil o( =araRa.%e iss%e! a resol%tion a%t$oriBing =araRa.%e Ma'or 6al(ri!o N. Ferrer to enter into contract ,it$ an' service coo&erative (or t$e establis$ment o&eration maintenance an! management o( (lea mar+ets an!?or ven!ing areas. On #%g%st 8 1885 res&on!ent m%nici&alit' an! res&on!ent =alan'ag a service coo&erative entere! into an agreement ,$ereb' t$e latter s$all o&erate maintain an! manage t$e (lea mar+et in t$e a(orementione! streets ,it$ t$e obligation to remit !%es to t$e treas%r' o( t$e m%nici&al government o( =araRa.%e. Conse.%entl' mar+et stalls ,ere &%t %& b' res&on!ent =alan'ag on t$e sai! streets. On )e&tember 11 1885 &etitioner Brig. Gen. Macasiano =N= )%&erinten!ent o( t$e Metro&olitan 2ra((ic Comman! or!ere! t$e !estr%ction an! con(iscation o( stalls along G.G. Cr%B an! 7. Gabriel )t. in Baclaran. 2$ese stalls ,ere later ret%rne! to res&on!ent =alan'ag. On October 1G 1885 &etitioner Brig. General Macasiano ,rote a letter to res&on!ent =alan'ag giving t$e latter ten ;15< !a's to !iscontin%e t$e (lea mar+etA ot$er,ise t$e mar+et stalls s$all be !ismantle!. Hence on October /1 1885 res&on!ents m%nici&alit' an! =alan'ag (ile! ,it$ t$e trial co%rt a 9oint &etition (or &ro$ibition an! man!am%s ,it$ !amages an! &ra'er (or &reliminar' in9%nction to ,$ic$ t$e &etitioner (ile! $is memoran!%m?o&&osition to t$e iss%ance o( t$e ,rit o( &reliminar' in9%nction. On October /0 1885 t$e trial co%rt iss%e! a tem&orar' restraining or!er to en9oin &etitioner (rom en(orcing $is letterDor!er o( October 1G 1885 &en!ing t$e $earing on t$e motion (or ,rit o( &reliminar' in9%nction. On December 17 1885 t$e trial co%rt iss%e! an or!er %&$ol!ing t$e vali!it' o( Or!inance No. 8G s. 1885 o( t$e M%nici&alit'H o( =araRa.%e an! en9oining &etitioner Brig. Gen. Macasiano (rom en(orcing $is letterDor!er against res&on!ent =alan'ag. *ss%e: 6ON t$e or!inance a%t$oriBing t$e (lea mar+ets on &%blic streets is vali! NO. 2$e &ro&ert' o( &rovinces cities an! m%nici&alities is !ivi!e! into &ro&ert' (or &%blic %se an! &atrimonial &ro&ert' ;#rt. 0/1 Civil Co!e<. #s to ,$at consists o( &ro&ert' (or &%blic %se #rticle 0/0 o( Civil Co!e states: #rt. 0/0. =ro&ert' (or &%blic %se in t$e &rovinces cities an! m%nici&alities consists o( t$e &rovincial roa!s cit' streets t$e s.%ares (o%ntains &%blic ,aters &romena!es an! &%blic ,or+s (or &%blic service &ai! (or b' sai! &rovinces cities or m%nici&alities. #ll ot$er &ro&ert' &ossesse! b' an'
01

o( t$em is &atrimonial an! s$all be governe! b' t$is Co!e ,it$o%t &re9%!ice to t$e &rovisions o( s&ecial la,s. 7. Gabriel G.G. Cr%B Ba'ani$an Lt. Garcia 34tension an! O&ena streets are local roa!s %se! (or &%blic service an! are t$ere(ore consi!ere! &%blic &ro&erties o( res&on!ent m%nici&alit'. =ro&erties o( t$e local government ,$ic$ are !evote! to &%blic service are !eeme! &%blic an! are %n!er t$e absol%te control o( Congress. Hence local governments $ave no a%t$orit' ,$atsoever to control or reg%late t$e %se o( &%blic &ro&erties %nless s&eci(ic a%t$orit' is veste! %&on t$em b' Congress. One s%c$ e4am&le o( t$is a%t$orit' given b' Congress to t$e local governments is t$e &o,er to close roa!s as &rovi!e! in )ection 15 C$a&ter ** o( t$e LGC ,$ic$ states: )ec. 15. Clos%re o( roa!s. D # LG@ ma' li+e,ise t$ro%g$ its $ea! acting &%rs%ant to a resol%tion o( its sangg%niang an! in accor!ance ,it$ e4isting la, an! t$e &rovisions o( t$is Co!e close an' baranga' m%nici&al cit' or &rovincial roa! street alle' &ar+ or s.%are. No s%c$ ,a' or &lace or an' &art o( t$ereo( s$all be close ,it$o%t in!emni('ing an' &erson &re9%!ice! t$ereb'. # &ro&ert' t$%s ,it$!ra,n (rom &%blic %se ma' be %se! or conve'e! (or an' &%r&ose (or ,$ic$ ot$er real &ro&ert' belonging to t$e local %nit concerne! mig$t be la,(%ll' %se! or conve'e!. Ho,ever t$e a(orestate! legal &rovision ,$ic$ gives a%t$orit' to LG@s to close roa!s an! ot$er similar &%blic &laces s$o%l! be rea! an! inter&rete! in accor!ance ,it$ basic &rinci&les alrea!' establis$e! b' la,. 2$ese basic &rinci&les $ave t$e e((ect o( limiting s%c$ a%t$orit' o( t$e &rovince cit' or m%nici&alit' to close a &%blic street or t$oro%g$(are. #rticle 0/0 o( t$e Civil Co!e la's !o,n t$e basic &rinci&le t$at &ro&erties o( &%blic !ominion !evote! to &%blic %se an! ma!e available to t$e &%blic in general are o%tsi!e t$e commerce o( man an! cannot be !is&ose! o( or lease! b' t$e LG@ to &rivate &ersons. #si!e (rom t$e re.%irement o( !%e &rocess ,$ic$ s$o%l! be com&lie! ,it$ be(ore closing a roa! street or &ar+ t$e clos%re s$o%l! be (or t$e sole &%r&ose o( ,it$!ra,ing t$e roa! or ot$er &%blic &ro&ert' (rom &%blic %se ,$en circ%mstances s$o, t$at s%c$ &ro&ert' is no longer inten!e! or necessar' (or &%blic %se or &%blic service. 6$en it is alrea!' ,it$!ra,n (rom &%blic %se t$e &ro&ert' t$en becomes &atrimonial &ro&ert' o( t$e LG@ concerne! ;#rticle 0// Civil Co!eA Ceb% O4'gen etc. et al. v. Bercilles et al. G.-. No. LDD05070 #%g%st /8 187C GG )C-# 081<. *t is onl' t$en t$at t$e res&on!ent m%nici&alit' can "%se or conve' t$em (or an' &%r&ose (or ,$ic$ ot$er real &ro&ert' belonging to t$e local %nit concerne! mig$t be la,(%ll' %se! or conve'e!" in accor!ance ,it$ t$e last sentence o( )ection 15 C$a&ter ** o( Blg. 117 +no,n as LGC. *n one case t$e Cit' Co%ncil o( Ceb% t$ro%g$ a resol%tion !eclare! t$e terminal roa! o( M. Borces )treet Mabolo Ceb% Cit' as an aban!one! roa! t$e same not being incl%!e! in t$e Cit' Develo&ment =lan. 2$erea(ter t$e Cit' Co%ncil &asses anot$er resol%tion a%t$oriBing t$e sale o( t$e sai! aban!one! roa! t$ro%g$ &%blic bi!!ing. 6e $el! t$erein t$at t$e Cit' o( Ceb% is em&o,ere! to close a cit' street an! to vacate or ,it$!ra, t$e same (rom &%blic %se. )%c$ ,it$!ra,n &ortion becomes &atrimonial &ro&ert' ,$ic$ can be t$e ob9ect o( an or!inar' contract ;Ceb% O4'gen an! #cet'lene Co. *nc. v. Bercilles et al. G.-. No.LD05070 #%g%st /8 187C GG )C-# 081<. Ho,ever t$ose roa!s an! streets ,$ic$ are available to t$e &%blic in general an! or!inaril' %se! (or ve$ic%lar tra((ic are still consi!ere! &%blic &ro&ert' !evote! to &%blic %se. *n s%c$ case t$e local government $as no &o,er to %se it (or anot$er &%r&ose or to !is&ose o( or lease it to &rivate &ersons. 3ven ass%ming in gratia arg%menti t$at res&on!ent m%nici&alit' $as t$e a%t$orit' to &ass t$e !is&%te! or!inance t$e same cannot be vali!l' im&lemente! beca%se it cannot be consi!ere! a&&rove! b' t$e Metro&olitan Manila #%t$orit' !%e to nonDcom&liance b' res&on!ent m%nici&alit' o( t$e con!itions im&ose! b' t$e (ormer (or t$e a&&roval o( t$e or!inance. -es&on!ent m%nici&alit' $as not s$o,n an' iota o( &roo( t$at it $as com&lie! ,it$ t$e (oregoing con!itions &rece!ent to t$e a&&roval o( t$e or!inance. 2$e allegations o( res&on!ent m%nici&alit' t$at t$e close! streets ,ere not %se! (or ve$ic%lar tra((ic an! t$at t$e ma9orit' o( t$e resi!ents !o not o&&ose t$e establis$ment o( a (lea mar+et on sai! streets are %ns%&&orte! b' an' evi!ence t$at ,ill s$o, t$at t$is (irst con!ition $as been met. Li+e,ise t$e !esignation b' res&on!ents o( a time sc$e!%le !%ring ,$ic$ t$e (lea mar+et s$all o&erate is absent.
00

F%rt$er it is o( &%blic notice t$at t$e streets along Baclaran area are congeste! ,it$ &eo&le $o%ses an! tra((ic bro%g$t abo%t b' t$e &roli(eration o( ven!ors occ%&'ing t$e streets. 2o license an! allo, t$e establis$ment o( a (lea mar+et along 7. Gabriel G.G. Cr%B Ba'ani$an Lt. Garcia 34tension an! O&ena streets in Baclaran ,o%l! not $el& in solving t$e &roblem o( congestion. 2$e &o,ers o( a LG@ are not absol%te. 2$e' are s%b9ect to limitations lai! !o,n b' toe Constit%tion an! t$e la,s s%c$ as o%r Civil Co!e. Moreover t$e e4ercise o( s%c$ &o,ers s$o%l! be s%bservient to &aramo%nt consi!erations o( $ealt$ an! ,ellDbeing o( t$e members o( t$e comm%nit'. 3ver' LG@ $as t$e s,orn obligation to enact meas%res t$at ,ill en$ance t$e &%blic $ealt$ sa(et' an! convenience maintain &eace an! or!er an! &romote t$e general &ros&erit' o( t$e in$abitants o( t$e local %nits. Base! on t$is ob9ective t$e local government s$o%l! re(rain (rom acting to,ar!s t$at ,$ic$ mig$t &re9%!ice or a!versel' a((ect t$e general ,el(are. Dacana' case: t$e general &%blic $ave a legal rig$t to !eman! t$e !emolition o( t$e illegall' constr%cte! stalls in &%blic roa!s an! streets an! t$e o((icials o( res&on!ent m%nici&alit' $ave t$e corres&on!ing !%t' arising (rom &%blic o((ice to clear t$e cit' streets an! restore t$em to t$eir s&eci(ic &%blic &%r&ose. 2$e instant case as ,ell as t$e Dacana' case involves an or!inance ,$ic$ is voi! an! illegal (or lac+ o( basis an! a%t$orit' in la,s a&&licable !%ring its time. Ho,ever at t$is &oint 6e (in! it ,ort$' to note t$at Batas =ambansa Blg. 117 +no,n as Local Government Lo!e $as alrea!' been re&eale! b' -e&%blic #ct No. 71G5 +no,n as LGC o( 1881 ,$ic$ too+ e((ect on 7an%ar' 1 188/. )ection C;!< o( t$e ne, Co!e &rovi!es t$at rig$ts an! obligations e4isting on t$e !ate o( e((ectivit' o( t$e ne, Co!e an! arising o%t o( contracts or an' ot$er so%rce o( &restation involving a LG@ s$all be governe! b' t$e original terms an! con!itions o( t$e sai! contracts or t$e la, in (orce at t$e time s%c$ rig$ts ,ere veste!. Pilapil v. CA Facts: 2$e Colomi!as o,n a &arcel o( lan! ,$ic$ $as a roa! rig$t o( ,a' lea!ing to t$e national $ig$,a'. )%c$ roa! en!s at t$e =ila&ils> lan!. #ccor!ing to t$e Colomi!as a camino vecinal lea!ing to t$e national $ig$,a' e4ists ,$ile t$e =ila&ils !en' s%c$ (act. 2$e Colomi!as trie! to im&rove t$e camino (or t$e &%blic>s convenience b%t s%c$ ,as met ,it$ t$reats (rom t$e =ila&ils. 2$e =ila&ils also t$reatene! to (ence o(( t$e camino vecinal. 2$e Colomi!as t$en (ile! a &etition (or in9%nction an! !amages ,it$ a &ra'er (or a ,rit o( =M or &ro$ibitor' in9%nction ,$ic$ so%g$t to &revent t$e =ila&ils (rom $arassing t$em as ,ell as (encing o(( t$e camino vecinal. 2$e =ila&ils also (ile! a case against t$e Colomi!as alleging t$at no s%c$ camino e4ists on t$eir lan!. *n trial t$e M%nici&al =lanning an! Develo&ment Coor!inator o( Liloan testi(ie! t$at accor!ing to t$e Boning ma& o( Liloan t$e camino !oes not traverse b%t r%ns along t$e si!e o( t$e =ila&ils> &ro&ert' *ss%e: 6ON t$e M%nici&alit' o( Liloan $as a%t$orit' to close or aban!on t$e camino vecinal. :3). *t is be'on! !is&%te t$at t$e establis$ment clos%re or aban!onment o( t$e camino vecinal is t$e sole &rerogative o( t$e M%nici&alit' o( Liloan. No &rivate &art' can inter(ere ,it$ s%c$ a rig$t. 2$%s even i( 6e are to agree ,it$ bot$ t$e trial co%rt an! &%blic res&on!ent t$at Longa+it an! =e&ito ,ere telling t$e tr%t$ t$e !ecision o( t$e M%nici&alit' o( Liloan ,it$ res&ect to t$e sai! camino vecinal in sitio Ba$a+ m%st &revail. *t is t$%s &ointless to concentrate on t$e testimonies o( bot$ ,itnesses since t$e same $ave (or all intents an! &%r&oses become irrelevant. 2$e &ro&ert' o( &rovinces cities an! m%nici&alities is !ivi!e! into &ro&ert' (or &%blic %se an! &atrimonial &ro&ert'. 2$e (irst consists o( t$e &rovincial roa!s cit' streets m%nici&al streets s.%ares (o%ntains &%blic ,aters &romena!es an! &%blic ,or+s (or &%blic service &ai! (or b' t$e sai! &rovinces cities or m%nici&alities. 2$e' are governe! b' t$e same &rinci&les as &ro&ert' o( &%blic !ominion o( t$e same c$aracter. 0/ @n!er t$e a&&licable la, in t$is case Batas =ambansa Blg. 117 ;2$e LGC< t$e )angg%niang Ba'an t$e legislative bo!' o( t$e m%nici&alit' 01 $a! t$e &o,er to a!o&t Boning an! s%b!ivision or!inances or reg%lations s%b9ect to t$e &rovisions o( e4isting la,s an! to &rovi!e (or t$e constr%ction im&rovement re&air an! maintenance o( m%nici&al streets aven%es alle's si!e,al+s bri!ges &ar+s an! ot$er &%blic &laces reg%late t$e %se t$ereo( an! &ro$ibit t$e constr%ction or &lacing o( obstacles or encroac$ments on
0C

t$em 00 )ection 15 C$a&ter / 2itle One Boo+ * o( sai! Co!e &rovi!e!: 0C )ec. 15. Clos%re o( roa!s. S # LG@ ma' li+e,ise t$ro%g$ its $ea! acting &%rs%ant to a resol%tion o( its )angg%niang an! in accor!ance ,it$ e4isting la, an! t$e &rovisions o( t$is Co!e close an' baranga' m%nici&al cit' or &rovincial roa! street alle' &ar+ or s.%are. No s%c$ ,a' or &lace or an' &art t$ereo( s$all be close! ,it$o%t in!emni('ing an' &erson &re9%!ice! t$ereb'. # &ro&ert' t$%s ,it$!ra,n (rom &%blic %se ma' be %se! or conve'e! (or an' &%r&ose (or ,$ic$ ot$er real &ro&ert' belonging to t$e local %nit concerne! mig$t be la,(%ll' %se! or conve'e!. # camino vecinal is a m%nici&al roa!. *t is also &ro&ert' (or &%blic %se. =%rs%ant t$ere(ore to t$e above &o,ers o( a LG@ t$e M%nici&alit' o( Liloan $a! t$e %nassailable a%t$orit' to ;a< &re&are an! a!o&t a lan! %se ma& ;b< &rom%lgate a Boning or!inance ,$ic$ ma' consi!er among ot$er t$ings t$e m%nici&al roa!s to be constr%cte! maintaine! im&rove! or re&aire! an! ;c< close an' m%nici&al roa!. *n t$e instant case t$e M%nici&alit' o( Liloan t$ro%g$ t$e )angg%niang Ba'an a&&rove! t$e @rban Lan! @se =lanA t$is &lan ,as !%l' signe! b' t$e M%nici&al Ma'or ;34$ibit "1"<. B' !oing so t$e sai! legislative bo!' !etermine! among ot$ers t$e location o( t$e camino vecinal in sitio Ba$a+. 2$e %nreb%tte! testimon' o( 3ngineer 3&i(anio 7or!an s$o,s t$at t$e same ,as a&&rove! b' t$e )angg%niang Ba'an. 2$e rel%ctance o( t$e trial co%rt an! &%blic res&on!ent to give !%e ,eig$t to t$e testimon' o( 3ngineer 7or!an stemme! (rom a !o%bt as to $is a%t$orit' to &re&are t$e &lan. 2$ere is also some con(%sion regar!ing t$e &art' ,$o !irecte! $im to !o so. Bot$ co%rts observe! t$at ,$ile on !irect e4amination $e testi(ie! t$at t$e )angg%niang Ba'an instr%cte! $im to &re&are t$e Boning ma& 07 !%ring crossD e4amination $e state! t$at $e &re&are! it %&on t$e Ma'orHs oral or!er. 08 )%c$ inconsistenc' is .%ite trivial an! $ence !i! not a((ect t$e &re&aration an! s%bse.%ent a&&roval o( t$e Boning ma&. *n t$e (irst &lace %n!er t$e a&&licable la, t$e ma'or ,as bot$ a member an! t$e &resi!ing o((icer o( t$e )angg%niang Ba'an. )econ!l' ,$at investe! t$e Boning ma& ,it$ legal e((ect ,as neit$er t$e a%t$orit' o( t$e &erson ,$o or!ere! its &re&aration nor t$e a%t$orit' o( t$e &erson ,$o act%all' &re&are! it b%t its a&&roval b' t$e )angg%niang Ba'an. F%rt$ermore ,it$ or ,it$o%t t$e or!er o( t$e Ma'or or )angg%niang Ba'an 3ngineer 7or!an as t$e t$en M%nici&al =lanning an! Develo&ment Coor!inator $a! t$e a%t$orit' to &re&are t$e &lan an! a!mit it to t$e )angg%niang Ba'an (or a&&roval. #mong $is (%nctions %n!er t$e governing la, at t$e time ,as to (orm%late an integrate! economic social &$'sical an! ot$er !evelo&ment ob9ectives an! &olicies (or t$e consi!eration an! a&&roval o( t$e sangg%niang ba'an an! t$e m%nici&al ma'or an! &re&are m%nici&al com&re$ensive &lans an! ot$er !evelo&ment &lanning !oc%ment. C5 2$%s even i( $e $a! not been instr%cte! b' an'one to &re&are t$e ma& $e co%l! nevert$eless on $is o,n initiative an! b' virt%e o( $is (%nctions ma+e one. 2$e trial co%rt an! &%blic res&on!ent t$en (aile! to a&&reciate t$e role an! (%nction o( a M%nici&al =lanning an! Develo&ment Coor!inator. #s (%rt$er !eclare! b' 3ngineer 7or!an t$is camino vecinal in sitio Ba$a+ "&asses t$e si!e o( t$e lan! o( )ocrates =ila&il. 2$is is t$e &ro&ose! roa! lea!ing to t$e national $ig$,a'." 2$e Colomi!as &resente! no reb%ttal ,itness to s$o, t$at b' t$e a&&roval o( t$e Boning ma& b' t$e )angg%niang Ba'an t$e' ,ere e((ectivel' !e&rive! o( access to t$e national $ig$,a' (rom t$eir &ro&ert'. O( co%rse t$e' ma' arg%e t$at t$e Boning ma& ,as &re&are! (or an! a&&rove! b' t$e )angg%niang Ba'an a(ter t$e (iling o( t$eir &etition in Civil Case No. -D/571/. Be t$at as it ma' t$is &re&aration an! a&&roval clearl' a s%&ervening event ,as relie! %&on intro!%ce! in evi!ence ,it$o%t ob9ection on t$e &art o( t$e Colomi!as an! eval%ate! b' t$e trial co%rt. *n s$ort t$e latter allo,e! t$e iss%e raise! b' t$e s%&ervening event to be trie!. 2$ere ,as not$ing &roce!%rall' ob9ectionable to t$isA on t$e contrar' )ection C -%le 15 o( t$e -%les o( Co%rt allo,s it. )ai! section rea!s: )ec. C. #men!ment to con(orm to or a%t$oriBe &resentation o( evi!ence. S 6$en iss%es not raise! b' t$e &lea!ings are trie! b' e4&ress or im&lie! consent o( t$e &arties t$e' s$all be treate! in all res&ects as i( t$e' $a! been raise! in t$e &lea!ings. )%c$ amen!ment o( t$e &lea!ings as ma' be necessar' to ca%se t$em to con(orm to t$e evi!ence an! to raise t$ese iss%es ma' be ma!e %&on motion o( an' &art' at an' time even a(ter 9%!gment b%t (ail%re to amen! !oes not a((ect t$e
0G

res%lt o( t$e trial o( t$ese iss%es. *( evi!ence is ob9ecte! to at t$e trial on t$e gro%n! t$at it is not ,it$in t$e iss%es ma!e b' t$e &lea!ings t$e co%rt ma' allo, t$e &lea!ing to be amen!e! an! s$all !o so (reel' ,$en t$e &resentation on t$e merits o( t$e action ,ill be s%bserve! t$ereb' an! t$e ob9ecting &art' (ails to satis(' t$e co%rt t$at t$e a!mission o( s%c$ evi!ence ,o%l! &re9%!ice $im in maintaining $is action or !e(ense %&on t$e merits. 2$e co%rt ma' grant a contin%ance to enable t$e ob9ecting &art' to meet s%c$ evi!ence. )%c$ s%&ervening (act !%l' &rove! to be an o((icial act o( t$e M%nici&alit' o( Liloan bin!s not onl' t$e =ila&ils an! t$e Colomi!as b%t also t$e general &%blic. 2$e solemn !eclarations o( ol! &eo&le li+e )esenan!o Longa+it an! Florentino =e&ito cannot overt%rn t$e !ecision o( t$e M%nici&alit' o( Liloan. MM*A v. Bel;Air Facts: B#K# is t$e registere! o,ner o( Ne&t%ne )treet a roa! insi!e BelD#ir Killage. Ne&t%ne r%ns &arallel to Mala'aan #ven%e a national roa! o&en to t$e general &%blic. Divi!ing t$e t,o ;/< streets is a concrete &erimeter ,all a&&ro4imatel' (i(teen ;1C< (eet $ig$. 2$e ,estern en! o( Ne&t%ne )treet intersects Nicanor Garcia (ormerl' -e&oso )treet a s%b!ivision roa! o&en to &%blic ve$ic%lar tra((ic ,$ile its eastern en! intersects Ma+ati #ven%e a national roa!. Bot$ en!s o( Ne&t%ne )treet are g%ar!e! b' iron gates. On December 15 188C res&on!ent receive! (rom &etitioner t$ro%g$ its C$airman a notice !ate! December // 188C re.%esting res&on!ent to o&en Ne&t%ne )treet to &%blic ve$ic%lar tra((ic starting 7an%ar' / 188G. On t$e same !a' res&on!ent ,as a&&rise! t$at t$e &erimeter ,all se&arating t$e s%b!ivision (rom t$e a!9acent Mala'aan #ven%e ,o%l! be !emolis$e!. On 7an%ar' / 188G res&on!ent instit%te! against &etitioner be(ore t$e -egional 2rial Co%rt Branc$ 11G Ma+ati Cit' Civil Case No. 8GD 551 (or in9%nction. -es&on!ent &ra'e! (or t$e iss%ance o( a tem&orar' restraining or!er an! &reliminar' in9%nction en9oining t$e o&ening o( Ne&t%ne )treet an! &ro$ibiting t$e !emolition o( t$e &erimeter ,all. -2C: iss%e! 2-O a(ter !%e $earing t$e trial co%rt !enie! iss%ance o( a &reliminar' in9%nction. C#: MMD# $as no a%t$orit' to or!er t$e o&ening o( Ne&t%ne )treet a &rivate s%b!ivision roa! an! ca%se t$e !emolition o( its &erimeter ,alls. *t $el! t$at t$e a%t$orit' is lo!ge! in t$e Cit' Co%ncil o( Ma+ati b' or!inance. *ss%e: 6ON t$e MMD# $as t$e man!ate to o&en Ne&t%ne )treet to &%blic tra((ic &%rs%ant to its reg%lator an! &olice &o,ers. MMD#: it $as t$e a%t$orit' to o&en Ne&t%ne )treet to &%blic tra((ic beca%se it is an agent o( t$e state en!o,e! ,it$ &olice &o,er in t$e !eliver' o( basic services in Metro Manila. One o( t$ese basic services is tra((ic management ,$ic$ involves t$e reg%lation o( t$e %se o( t$oro%g$(ares to ins%re t$e sa(et' convenience an! ,el(are o( t$e general &%blic. *t is allege! t$at t$e &olice &o,er o( MMD# ,as a((irme! b' t$is Co%rt in t$e consoli!ate! cases o( )angalang v. *nterme!iate #&&ellate Co%rt. From t$e &remise t$at it $as &olice &o,er it is no, %rge! t$at t$ere is no nee! (or t$e Cit' o( Ma+ati to enact an or!inance o&ening Ne&t%ne street to t$e &%blic. =olice &o,er is an in$erent attrib%te o( sovereignt'. *t $as been !e(ine! as t$e &o,er veste! b' t$e Constit%tion in t$e legislat%re to ma+e or!ain an! establis$ all manner o( ,$olesome an! reasonable la,s stat%tes an! or!inances eit$er ,it$ &enalties or ,it$o%t not re&%gnant to t$e Constit%tion as t$e' s$all 9%!ge to be (or t$e goo! an! ,el(are o( t$e common,ealt$ an! (or t$e s%b9ects o( t$e same. 2$e &o,er is &lenar' an! its sco&e is vast an! &ervasive reac$ing an! 9%sti('ing meas%res (or &%blic $ealt$ &%blic sa(et' &%blic morals an! t$e general ,el(are. *t bears stressing t$at &olice &o,er is lo!ge! &rimaril' in t$e National Legislat%re. *t cannot be e4ercise! b' an' gro%& or bo!' o( in!ivi!%als not &ossessing legislative &o,er. 2$e National Legislat%re $o,ever ma' !elegate t$is &o,er to t$e =resi!ent an! a!ministrative boar!s as ,ell as t$e la,ma+ing bo!ies o( m%nici&al cor&orations or LG@s. Once !elegate! t$e agents can e4ercise onl' s%c$ legislative &o,ers as are con(erre! on t$em b' t$e national la,ma+ing bo!'. # local government is a "&olitical s%b!ivision o( a nation or state ,$ic$ is constit%te! b' la, an! $as s%bstantial control o( local a((airs." 2$e LGC o( 1881 !e(ines a LG@ as a "bo!' &olitic an! cor&orate" one en!o,e! ,it$ &o,ers as a &olitical s%b!ivision o( t$e National Government an! as a cor&orate entit' re&resenting t$e in$abitants o( its territor'.
07

LG@s are t$e &rovinces cities m%nici&alities an! baranga's. 2$e' are also t$e territorial an! &olitical s%b!ivisions o( t$e state. O%r Congress !elegate! &olice &o,er to t$e LG@s in t$e LGC o( 1881. LG@s e4ercise &olice &o,er t$ro%g$ t$eir res&ective legislative bo!ies. 2$e legislative bo!' o( t$e &rovincial government is t$e sangg%niang &anlala,igan t$at o( t$e cit' government is t$e sangg%niang &anl%ngso! t$at o( t$e m%nici&al government is t$e sangg%niang ba'an an! t$at o( t$e baranga' is t$e sangg%niang baranga'. 2$e LGC o( 1881 em&o,ers t$e sangg%niang &anlala,igan sangg%niang &anl%ngso! an! sangg%niang ba'an to "enact or!inances a&&rove resol%tions an! a&&ro&riate (%n!s (or t$e general ,el(are o( t$e U&rovince cit' or m%nici&alit' as t$e case ma' beV an! its in$abitants &%rs%ant to )ection 1G o( t$e Co!e an! in t$e &ro&er e4ercise o( t$e cor&orate &o,ers o( t$e U&rovince cit' m%nici&alit'V &rovi!e! %n!er t$e Co!e. 2$e same Co!e gives t$e sangg%niang baranga' t$e &o,er to "enact or!inances as ma' be necessar' to !isc$arge t$e res&onsibilities con(erre! %&on it b' la, or or!inance an! to &romote t$e general ,el(are o( t$e in$abitants t$ereon." Metro&olitan or Metro Manila is a bo!' com&ose! o( several LG@s D i.e. t,elve ;1/< cities an! (ive ;C< m%nici&alities namel' t$e cities o( Caloocan Manila Man!al%'ong Ma+ati =asa' =asig W%eBon M%ntinl%&a Las =inas Mari+ina =arana.%e an! KalenB%ela an! t$e m%nici&alities o( Malabon Navotas =ateros )an 7%an an! 2ag%ig. 6it$ t$e &assage o( -e&%blic #ct ;-. #.< No. 78/0 U/0V in 188C Metro&olitan Manila ,as !eclare! as a "s&ecial !evelo&ment an! a!ministrative region" an! t$e #!ministration o( "metroD,i!e" basic services a((ecting t$e region &lace! %n!er "a !evelo&ment a%t$orit'" re(erre! to as t$e MMD#. "MetroD,i!e services" are t$ose "services ,$ic$ $ave metroD ,i!e im&act an! transcen! local &olitical bo%n!aries or entail $%ge e4&en!it%res s%c$ t$at it ,o%l! not be viable (or sai! services to be &rovi!e! b' t$e in!ivi!%al LG@s com&rising Metro Manila." 2$ere are seven ;7< basic metroD ,i!e services an! t$e sco&e o( t$ese services cover t$e (ollo,ing: ;1< !evelo&ment &lanningA ;/< trans&ort an! tra((ic managementA ;1< soli! ,aste !is&osal an! managementA ;0< (loo! control an! se,erage managementA ;C< %rban rene,al Boning an! lan! %se &lanning an! s$elter servicesA ;G< $ealt$ an! sanitation %rban &rotection an! &oll%tion controlA an! ;7< &%blic sa(et'. 2$e basic service o( trans&ort an! tra((ic management incl%!es t$e (ollo,ing: ";b< 2rans&ort an! tra((ic management ,$ic$ incl%!e t$e (orm%lation coor!ination an! monitoring o( &olicies stan!ar!s &rograms an! &ro9ects to rationaliBe t$e e4isting trans&ort o&erations in(rastr%ct%re re.%irements t$e %se o( t$oro%g$(ares an! &romotion o( sa(e an! convenient movement o( &ersons an! goo!sA &rovision (or t$e mass trans&ort s'stem an! t$e instit%tion o( a s'stem to reg%late roa! %sersA a!ministration an! im&lementation o( all tra((ic en(orcement o&erations tra((ic engineering services an! tra((ic e!%cation &rograms incl%!ing t$e instit%tion o( a single tic+eting s'stem in Metro&olitan ManilaA" 2$e sco&e o( t$e MMD#>s (%nction is limite! to t$e !eliver' o( t$e seven ;7< basic services. One o( t$ese is trans&ort an! tra((ic management ,$ic$ incl%!es t$e (orm%lation an! monitoring o( &olicies stan!ar!s an! &ro9ects to rationaliBe t$e e4isting trans&ort o&erations in(rastr%ct%re re.%irements t$e %se o( t$oro%g$(ares an! &romotion o( t$e sa(e movement o( &ersons an! goo!s. *t also covers t$e mass trans&ort s'stem an! t$e instit%tion o( a s'stem o( roa! reg%lation t$e a!ministration o( all tra((ic en(orcement o&erations tra((ic engineering services an! tra((ic e!%cation &rograms incl%!ing t$e instit%tion o( a single tic+eting s'stem in Metro Manila (or tra((ic violations. @n!er t$is service t$e MMD# is e4&ressl' a%t$oriBe! "to set t$e &olicies concerning tra((ic" an! "coor!inate an! reg%late t$e im&lementation o( all tra((ic management &rograms." *n a!!ition t$e MMD# ma' "install an! a!minister a single tic+eting s'stem " (i4 im&ose an! collect (ines an! &enalties (or all tra((ic violations. *t ,ill be note! t$at t$e &o,ers o( t$e MMD# are limite! to t$e (ollo,ing acts: (orm%lation coor!ination reg%lation im&lementation &re&aration management monitoring setting o( &olicies installation o( a s'stem an! a!ministration. 2$ere is no s'llable in -. #. No. 78/0 t$at grants t$e MMD# &olice &o,er let alone legislative &o,er. 3ven t$e Metro Manila Co%ncil $as not been !elegate! an' legislative &o,er. @nli+e t$e legislative bo!ies o( t$e LG@s
08

t$ere is no &rovision in -. #. No. 78/0 t$at em&o,ers t$e MMD# or its Co%ncil to "enact or!inances a&&rove resol%tions an! a&&ro&riate (%n!s (or t$e general ,el(are" o( t$e in$abitants o( Metro Manila. 2$e MMD# is as terme! in t$e c$arter itsel( a "!evelo&ment a%t$orit'."*t is an agenc' create! (or t$e &%r&ose o( la'ing !o,n &olicies an! coor!inating ,it$ t$e vario%s national government agencies &eo&le>s organiBations nonDgovernmental organiBations an! t$e &rivate sector (or t$e e((icient an! e4&e!itio%s !eliver' o( basic services in t$e vast metro&olitan area. #ll its (%nctions are a!ministrative in nat%re. Contrar' to &etitioner>s claim t$e t,o )angalang cases !o not a&&l' to t$e case at bar. Firstl' bot$ involve! Boning or!inances &asse! b' t$e m%nici&al co%ncil o( Ma+ati an! t$e MMC. *n t$e instant case t$e basis (or t$e &ro&ose! o&ening o( Ne&t%ne )treet is containe! in t$e notice o( December // 188C sent b' &etitioner to res&on!ent B#K# t$ro%g$ its &resi!ent. 2$e notice !oes not cite an' or!inance or la, eit$er b' t$e )angg%niang =anl%ngso! o( Ma+ati Cit' or b' t$e MMD# as t$e legal basis (or t$e &ro&ose! o&ening o( Ne&t%ne )treet. =etitioner MMD# sim&l' relie! on its a%t$orit' %n!er its c$arter "to rationaliBe t$e %se o( roa!s an!?or t$oro%g$(ares (or t$e sa(e an! convenient movement o( &ersons." -ationaliBing t$e %se o( roa!s an! t$oro%g$(ares is one o( t$e acts t$at (all ,it$in t$e sco&e o( trans&ort an! tra((ic management. B' no stretc$ o( t$e imagination $o,ever can t$is be inter&rete! as an e4&ress or im&lie! grant o( or!inanceDma+ing &o,er m%c$ less &olice &o,er. )econ!l' t$e MMD# is not t$e same entit' as t$e MMC in )angalang. #lt$o%g$ t$e MMC is t$e (orer%nner o( t$e &resent MMD# an e4amination o( =resi!ential Decree ;=. D.< No. 8/0 t$e c$arter o( t$e MMC s$o,s t$at t$e latter &ossesse! greater &o,ers ,$ic$ ,ere not besto,e! on t$e &resent MMD#. 2$e MMC ,as t$e "central government" o( Metro Manila (or t$e &%r&ose o( establis$ing an! a!ministering &rograms &rovi!ing services common to t$e area. #s a "central government" it $a! t$e &o,er to lev' an! collect ta4es an! s&ecial assessments t$e &o,er to c$arge an! collect (eesA t$e &o,er to a&&ro&riate mone' (or its o&eration an! at t$e same time revie, a&&ro&riations (or t$e cit' an! m%nici&al %nits ,it$in its 9%ris!iction. *t ,as besto,e! t$e &o,er to enact or a&&rove or!inances resol%tions an! (i4 &enalties (or violation o( s%c$ or!inances an! resol%tions. *t also $a! t$e &o,er to revie, amen! revise or re&eal all or!inances resol%tions an! acts o( an' o( t$e (o%r ;0< cities an! t$irteen ;11< m%nici&alities com&rising Metro Manila. *t ,as t$e MMC itsel( t$at &ossesse! legislative &o,ers. #ll or!inances resol%tions an! meas%res recommen!e! b' t$e )angg%niang Ba'an ,ere s%b9ect to t$e MMC>s a&&roval. Moreover t$e &o,er to im&ose ta4es an! ot$er levies t$e &o,er to a&&ro&riate mone' an! t$e &o,er to &ass or!inances or resol%tions ,it$ &enal sanctions ,ere veste! e4cl%sivel' in t$e MMC. 2$%s Metro&olitan Manila $a! a "central government " i.e. t$e MMC ,$ic$ (%ll' &ossesse! legislative an! &olice &o,ers. 6$atever legislative &o,ers t$e com&onent cities an! m%nici&alities $a! ,ere all s%b9ect to revie, an! a&&roval b' t$e MMC. @n!er t$e 1887 Constit%tion t$e LG@s became &rimaril' res&onsible (or t$e governance o( t$eir res&ective &olitical s%b!ivisions. 2$e MM#>s 9%ris!iction ,as limite! to a!!ressing common &roblems involving basic services t$at transcen!e! local bo%n!aries. *t !i! not $ave legislative &o,er. *ts &o,er ,as merel' to &rovi!e t$e LG@s tec$nical assistance in t$e &re&aration o( local !evelo&ment &lans. #n' semblance o( legislative &o,er it $a! ,as con(ine! to a "revie, Uo(V legislation &ro&ose! b' t$e local legislative assemblies to ens%re consistenc' among local governments an! ,it$ t$e com&re$ensive !evelo&ment &lan o( Metro Manila " an! to "a!vise t$e local governments accor!ingl'." 6$en -.#. No. 78/0 too+ e((ect Metro&olitan Manila became a "s&ecial !evelo&ment an! a!ministrative region" an! t$e MMD# a "s&ecial !evelo&ment a%t$orit'" ,$ose (%nctions ,ere ",it$o%t &re9%!ice to t$e a%tonom' o( t$e a((ecte! LG@s." 2$e c$aracter o( t$e MMD# ,as clearl' !e(ine! in t$e legislative !ebates enacting its c$arter. Clearl' t$e MMD# is not a &olitical %nit o( government. 2$e &o,er !elegate! to t$e MMD# is t$at given to t$e Metro Manila Co%ncil to &rom%lgate a!ministrative r%les an! reg%lations in t$e im&lementation o( t$e MMD#>s (%nctions. 2$ere is no grant o( a%t$orit' to enact or!inances an! reg%lations (or t$e general ,el(are o( t$e in$abitants o( t$e metro&olis. *t is t$%s be'on! !o%bt t$at t$e MMD# is not a LG@ or a &%blic cor&oration en!o,e! ,it$ legislative &o,er.
08

*t is not even a "s&ecial metro&olitan &olitical s%b!ivision" as contem&late! in )ection 11 #rticle J o( t$e Constit%tion. 2$e creation o( a "s&ecial metro&olitan &olitical s%b!ivision" re.%ires t$e a&&roval b' a ma9orit' o( t$e votes cast in a &lebiscite in t$e &olitical %nits !irectl' a((ecte!. -. #. No. 78/0 ,as not s%bmitte! to t$e in$abitants o( Metro Manila in a &lebiscite. 2$e C$airman o( t$e MMD# is not an o((icial electe! b' t$e &eo&le b%t a&&ointe! b' t$e =resi!ent ,it$ t$e ran+ an! &rivileges o( a cabinet member. *n (act &art o( $is (%nction is to &er(orm s%c$ ot$er !%ties as ma' be assigne! to $im b' t$e =resi!ent ,$ereas in LG@s t$e =resi!ent merel' e4ercises s%&ervisor' a%t$orit'. 2$is em&$asiBes t$e a!ministrative c$aracter o( t$e MMD#. Clearl' t$en t$e MMC %n!er =. D. No. 8/0 is not t$e same entit' as t$e MMD# %n!er -. #. No. 78/0. @nli+e t$e MMC t$e MMD# $as no &o,er to enact or!inances (or t$e ,el(are o( t$e comm%nit'. *t is t$e LG@s acting t$ro%g$ t$eir res&ective legislative co%ncils t$at &ossess legislative &o,er an! &olice &o,er. *n t$e case at bar t$e )angg%niang =anl%ngso! o( Ma+ati Cit' !i! not &ass an' or!inance or resol%tion or!ering t$e o&ening o( Ne&t%ne )treet $ence its &ro&ose! o&ening b' &etitioner MMD# is illegal an! t$e res&on!ent C# !i! not err in so r%ling. -2C at =ros&eri!a! #g%san !el )%r. 2$e m%nici&alit' (ile! a Motion to 2a+e or 3nter @&on t$e =ossession o( )%b9ect Matter o( 2$is Case stating t$at it $a! alrea!' !e&osite! ,it$ t$e m%nici&al treas%rer t$e necessar' amo%nt in accor!ance ,it$ )ection / -%le G7 o( t$e -evise! -%les o( Co%rt an! t$at it ,o%l! be in t$e governmentHs best interest (or &%blic res&on!ent to be allo,e! to ta+e &ossession o( t$e &ro&ert'. -2C: grante! res&on!ent m%nici&alit'Hs motion to ta+e &ossession o( t$e lan! $el! t$at t$e )angg%niang =anlala,iganHs (ail%re to !eclare t$e resol%tion invali! leaves it e((ective. *t a!!e! t$at t$e !%t' o( t$e )angg%niang =anlala,igan is merel' to revie, t$e or!inances an! resol%tions &asse! b' t$e )angg%niang Ba'an %n!er )ection /58 ;1< o( B.=. Blg. 117 ol! LGC an! t$at t$e e4ercise o( eminent !omain is not one o( t$e t,o acts en%merate! in )ection 18 t$ereo( re.%iring t$e a&&roval o( t$e )angg%niang =anlala,igan. M-: !enie!. C#: t$e &%blic &%r&ose (or t$e e4&ro&riation is clear (rom - 01D88 an! t$at since t$e )angg%niang =anlala,igan o( #g%san !el )%r !i! not !eclare - 01D88 invali! e4&ro&riation o( &etitionersH &ro&ert' co%l! &rocee!. M-: !enie!. Mean,$ile t$e M%nici&alit' o( B%na,an $a! erecte! t$ree b%il!ings on t$e s%b9ect &ro&ert': t$e #ssociation o( Baranga' Co%ncils ;#BC< Hall t$e M%nici&al Motor&ool bot$ ,oo!en str%ct%res an! t$e B%na,an M%nici&al G'mnasi%m ,$ic$ is ma!e o( concrete. =et: see+s t$e reversal o( t$e !ecision an! resol%tion o( t$e C# an! a !eclaration t$at - 01D88 o( t$e M%nici&alit' o( B%na,an is n%ll an! voi!. Co%rt iss%e! 2-O en9oining an! restraining &%blic res&on!ent 7%!ge (rom en(orcing $er or!er an! res&on!ent m%nici&alit' (rom %sing an! occ%&'ing all t$e b%il!ings constr%cte! an! (rom (%rt$er constr%cting an' b%il!ing on t$e lan! s%b9ect o( t$is &etition. #cting on &etitionersH Omnib%s Motion (or 3n(orcement o( -estraining Or!er an! (or Contem&t t$e Co%rt iss%e! a -esol%tion citing inc%mbent m%nici&al ma'or #n%ncio C. B%stillo (or contem&t or!ering $im to &a' t$e (ine an! to !emolis$ t$e "bloc+tien!as" ,$ic$ ,ere b%ilt in violation o( t$e restraining or!er. B%stillo &ai! t$e (ine an! mani(este! t$at $e lost in t$e election. 2$e inc%mbent Ma'or Leonar!o Barrios (ile! a Mani(estation Motion to -esolve "@rgent Motion (or *mme!iate Dissol%tion o( t$e 2em&orar' -estraining Or!er" an! Memoran!%m on 7%ne 11 188G (or t$e M%nici&alit' o( B%na,an.
Mo a# v. CA Facts: 2$e )angg%niang Ba'an o( t$e M%nici&alit' o( B%na,an in #g%san !el )%r &asse! - 01D88 "#%t$oriBing t$e M%nici&al Ma'or to *nitiate t$e =etition (or 34&ro&riation o( a One ;1< Hectare =ortion o( Lot No. G118D=lsD0 #long t$e National Hig$,a' O,ne! b' =ercival Mo!a' (or t$e )ite o( B%na,an Farmers Center an! Ot$er Government )&orts Facilities." - 01D88 ,as a&&rove! b' t$en M%nici&al Ma'or #n%ncio C. B%stillo an! transmitte! to t$e )angg%niang =anlala,igan (or its a&&roval. 2$e )angg%niang =anlala,igan !isa&&rove! sai! -esol%tion an! ret%rne! it ,it$ t$e comment t$at "e4&ro&riation is %nnecessar' consi!ering t$at t$ere are still available lots in B%na,an (or t$e establis$ment o( t$e government center." B%na,an (ile! a &etition (or 3minent Domain against &etitioner =ercival Mo!a' as ,ell as $is &arents be(ore t$e
C5

=et: conten! t$at t$e C# erre! in %&$ol!ing t$e legalit' o( t$e con!emnation &rocee!ings initiate! b' t$e m%nici&alit'. #ccor!ing to &etitioners t$e e4&ro&riation ,as &oliticall' motivate! an! - 01D 88 ,as correctl' !isa&&rove! b' t$e )angg%niang =anlala,igan t$ere being ot$er m%nici&al &ro&erties available (or t$e &%r&ose. =etitioners also &ra' t$at t$e (ormer Ma'or B%stillo be or!ere! to &a' !amages (or insisting on t$e en(orcement o( a voi! m%nici&al resol%tion. C#: !eclare! t$at t$e )angg%niang =anlala,iganHs reason (or !isa&&roving t$e resol%tion "co%l! be baseless beca%se it (aile! to &oint o%t ,$ic$ an! ,$ere are t$ose available lots.H" -es&on!ent co%rt also concl%!e! t$at since t$e )angg%niang =anlala,igan !i! not !eclare t$e m%nici&al boar!Hs resol%tion as invali! e4&ro&riation o( &etitionersH &ro&ert' co%l! &rocee!. *ss%e: 6ON a m%nici&alit' ma' e4&ro&riate &rivate &ro&ert' b' virt%e o( a m%nici&al resol%tion ,$ic$ ,as !isa&&rove! b' t$e )angg%niang =anlala,igan. NO. 3minent !omain t$e &o,er ,$ic$ t$e M%nici&alit' o( B%na,an e4ercise! in t$e instant case is a (%n!amental )tate &o,er t$at is inse&arable (rom sovereignt'. *t is governmentHs rig$t to a&&ro&riate in t$e nat%re o( a com&%lsor' sale to t$e )tate &rivate &ro&ert' (or &%blic %se or &%r&ose. *n$erentl' &ossesse! b' t$e national legislat%re t$e &o,er o( eminent !omain ma' be vali!l' !elegate! to local governments ot$er &%blic entities an! &%blic %tilities. For t$e ta+ing o( &rivate &ro&ert' b' t$e government to be vali! t$e ta+ing m%st be (or &%blic %se an! t$ere m%st be 9%st com&ensation. 2$e M%nici&alit' o( B%na,anHs &o,er to e4ercise t$e rig$t o( eminent !omain is not !is&%te! as it is e4&ressl' &rovi!e! (or in Batas =ambansa Blg. 117 t$e LGC 18 in (orce at t$e time e4&ro&riation &rocee!ings ,ere initiate!. )ection 8 o( sai! la, states: # LG@ ma' t$ro%g$ its $ea! an! acting &%rs%ant to a resol%tion o( its sangg%nian e4ercise t$e rig$t o( eminent !omain an! instit%te con!emnation &rocee!ings (or &%blic %se or &%r&ose. 6$at &etitioners .%estion is t$e lac+ o( a%t$orit' o( t$e m%nici&alit' to e4ercise t$is rig$t since t$e )angg%niang =anlala,igan !isa&&rove! - 01D88.
)ection 1C1 o( B.=. Blg. 117: )angg%niang =anlala,igan

-evie,. ;1< 6it$in t$irt' !a's a(ter receiving co&ies o( a&&rove! or!inances resol%tions an! e4ec%tive or!ers &rom%lgate! b' t$e m%nici&al ma'or t$e sangg%niang &anlala,igan s$all e4amine t$e !oc%ments or transmit t$em to t$e &rovincial attorne' or i( t$ere be none to t$e &rovincial (iscal ,$o s$all e4amine t$em &rom&tl' an! in(orm t$e sangg%niang &anlala,igan in ,riting o( an' !e(ect or im&ro&riet' ,$ic$ $e ma' !iscover t$erein an! ma+e s%c$ comments or recommen!ations as s$all a&&ear to $im &ro&er. ;/< *( t$e sangg%niang &anlala,igan s$all (in! t$at an' m%nici&al or!inance resol%tion or e4ec%tive or!er is be'on! t$e &o,er con(erre! %&on t$e sangg%niang ba'an or t$e ma'or it s$all !eclare s%c$ or!inance resol%tion or e4ec%tive or!er invali! in ,$ole or in &art entering its actions %&on t$e min%tes an! a!vising t$e &ro&er m%nici&al a%t$orities t$ereo(. 2$e e((ect o( s%c$ an action s$all be to ann%l t$e or!inance resol%tion or e4ec%tive or!er in .%estion in ,$ole or in &art. 2$e action o( t$e sangg%niang &anlala,igan s$all be (inal. 2$e )angg%niang =anlala,iganHs !isa&&roval o( M%nici&al - 01D88 is an in(irm action ,$ic$ !oes not ren!er sai! resol%tion n%ll an! voi!. 2$e la, as e4&resse! in )ection 1C1 o( B.=. Blg. 117 grants t$e )angg%niang =anlala,igan t$e &o,er to !eclare a m%nici&al resol%tion invali! on t$e sole gro%n! t$at it is be'on! t$e &o,er o( t$e )angg%niang Ba'an or t$e Ma'or to iss%e. #lt$o%g$ &ertaining to a similar &rovision o( la, b%t !i((erent (act%al milie% t$en obtaining t$e Co%rtHs &rono%ncements in KelaBco v. Blas ,$ere ,e cite! signi(icant earl' 9%ris&r%!ence are a&&licable to t$e case at bar. 2$e onl' gro%n! %&on ,$ic$ a &rovincial boar! ma' !eclare an' m%nici&al resol%tion or!inance or or!er invali! is ,$en s%c$ resol%tion or!inance or or!er is "be'on! t$e &o,ers con(erre! %&on t$e co%ncil or &resi!ent ma+ing t$e same." #bsol%tel' no ot$er gro%n! is recogniBe! b' t$e la,. # strictl' legal .%estion is be(ore t$e &rovincial boar! in its consi!eration o( a m%nici&al resol%tion or!inance or or!er. 2$e &rovincial ;boar!Hs< !isa&&roval o( an' resol%tion or!inance or or!er m%st be &remise! s&eci(icall' %&on t$e (act t$at s%c$ resol%tion or!inance or or!er is o%tsi!e t$e
C1

sco&e o( t$e legal &o,ers con(erre! b' la,. *( a &rovincial boar! &asses t$ese limits it %s%r&s t$e legislative (%nction o( t$e m%nici&al co%ncil or &resi!ent. )%c$ $as been t$e consistent co%rse o( e4ec%tive a%t$orit'. )angg%niang =anlala,igan ,as ,it$o%t t$e a%t$orit' to !isa&&rove M%nici&al - 01D88 (or t$e M%nici&alit' o( B%na,an clearl' $as t$e &o,er to e4ercise t$e rig$t o( eminent !omain an! its )angg%niang Ba'an t$e ca&acit' to &rom%lgate sai! resol%tion &%rs%ant to t$e earlierD.%ote! )ection 8 o( B.=. Blg. 117. =er(orce it (ollo,s t$at -esol%tion No. 01D88 is vali! an! bin!ing an! co%l! be %se! as la,(%l a%t$orit' to &etition (or t$e con!emnation o( &etitionersH &ro&ert'. #cc%sation o( &olitical o&&ression: it is allege! t$at =ercival Mo!a' inc%rre! t$e ire o( t$en Ma'or B%stillo ,$en $e re(%se! to s%&&ort t$e latterHs can!i!ac' (or ma'or in &revio%s elections. =etitioners claim t$at t$en inc%mbent Ma'or C. B%stillo %se! t$e e4&ro&riation to retaliate b' e4&ro&riating t$eir lan! even i( t$ere ,ere ot$er &ro&erties belonging to t$e m%nici&alit' an! available (or t$e &%r&ose. )&eci(icall' t$e' allege t$at t$e m%nici&alit' o,ns a vacant sevenD$ectare &ro&ert' a!9acent to &etitionersH lan! evi!ence! b' a s+etc$ &lan. 2$e limitations on t$e &o,er o( eminent !omain are t$at t$e %se m%st be &%blic com&ensation m%st be ma!e an! !%e &rocess o( la, m%st be observe!. 2$e )%&reme Co%rt ta+ing cogniBance o( s%c$ iss%es as t$e a!e.%ac' o( com&ensation necessit' o( t$e ta+ing an! t$e &%blic %se c$aracter or t$e &%r&ose o( t$e ta+ing /1 $as r%le! t$at t$e necessit' o( e4ercising eminent !omain m%st be gen%ine an! o( a &%blic c$aracter. Government ma' not ca&ricio%sl' c$oose ,$at &rivate &ro&ert' s$o%l! be ta+en. #(ter a care(%l st%!' o( t$e recor!s o( t$e case $o,ever ,e (in! no evi!entiar' s%&&ort (or &etitionersH allegations. 2$e %ncerti(ie! &$otoco&' o( t$e s+etc$ &lan !oes not concl%sivel' &rove t$at t$e m%nici&alit' !oes o,n vacant lan! a!9acent to &etitionersH &ro&ert' s%ite! to t$e &%r&ose o( t$e e4&ro&riation. *n t$e .%estione! !ecision res&on!ent a&&ellate co%rt similarl' $el! t$at t$e &lea!ings an! !oc%ments on recor! $ave not &ointe! o%t an' o( res&on!ent m%nici&alit'Hs "ot$er available &ro&erties available (or t$e same &%r&ose." 2$e acc%sations o( &olitical re&risal are li+e,ise %ns%&&orte! b' com&etent evi!ence. Conse.%entl' t$e Co%rt $ol!s t$at &etitionersH !eman! t$at t$e (ormer m%nici&al ma'or be &ersonall' liable (or !amages is ,it$o%t basis. Camarines (ur v. CA Facts: 2$e )angg%niang =anlala,igan o( t$e =rovince o( Cams%r &asse! -esol%tion No. 1/8 )eries o( 1888 a%t$oriBing t$e =rovincial Governor to &%rc$ase or e4&ro&riate &ro&ert' contig%o%s to t$e &rovincial ca&itol site in or!er to establis$ a &ilot (arm (or nonD(oo! an! nonDtra!itional agric%lt%ral cro&s an! a $o%sing &ro9ect (or &rovincial government em&lo'ees. Cams%r (ile! e4&ro&riation cases against t$e )an 7oa.%ins as ,ell as a motion (or t$e iss%ance o( ,rit o( &ossession. 2$e )7s (aile! to a&&ear at t$e $earing o( t$e motion. 2$e' move! to !ismiss t$e com&laints on t$e gro%n! o( ina!e.%ac' o( t$e &rice o((ere! (or t$eir &ro&ert'. -2C: !enie! t$e motion to !ismiss an! a%t$oriBe! t$e Cams%r to ta+e &ossession o( t$e &ro&ert' %&on t$e !e&osit ,it$ t$e Cler+ o( Co%rt o( t$e amo%nt o( =C 710.55 t$e amo%nt &rovisionall' (i4e! b' t$e trial co%rt to ans,er (or !amages t$at &rivate res&on!ents ma' s%((er in t$e event t$at t$e e4&ro&riation cases !o not &ros&er. *ss%e! a ,rit o( &ossession. 2$e )an 7oa.%ins (ile! a motion (or relie( (rom t$e or!er an! a motion to a!mit an amen!e! motion to !ismiss. Bot$ motions ,ere !enie!. C#: )7s as+e!: ;a< t$at t$e -es. be !eclare! n%ll an! voi!A ;b< t$at t$e com&laints (or e4&ro&riation be !ismisse!A an! ;c< t$at t$e or!er !en'ing t$e motion to !ismiss an! allo,ing Cams%r to ta+e &ossession o( t$e &ro&ert' s%b9ect o( t$e e4&ro&riation an! t$e or!er !en'ing t$e motion to a!mit t$e amen!e! motion to !ismiss be set asi!e. 2$e' also as+e! t$at an or!er be iss%e! to restrain t$e trial co%rt (rom en(orcing t$e ,rit o( &ossession an! t$erea(ter to iss%e a ,rit o( in9%nction. Cams%r: claime! t$at it $as t$e a%t$orit' to initiate t$e e4&ro&riation &rocee!ings %n!er )ections 0 an! 7 o( LGC ;B.=. Blg. 117< an! t$at t$e e4&ro&riations are (or a &%blic &%r&ose. )G: %n!er )ection 8 o( t$e LGC ;B.=. Blg. 117< t$ere ,as no nee! (or t$e a&&roval b' t$e O((ice o( t$e =resi!ent o( t$e e4ercise b' t$e )angg%niang =anlala,igan o( t$e rig$t o( eminent !omain. 34&resse! t$e vie, t$at t$e =rovince o( Cams%r m%st (irst sec%re t$e a&&roval o( t$e De&artment o( #grarian
C/

-e(orm o( t$e &lan to e4&ro&riate t$e lan!s o( &etitioners (or %se as a $o%sing &ro9ect. C#: set asi!e t$e or!er o( t$e trial co%rt allo,ing t$e =rovince o( Cams%r to ta+e &ossession o( &rivate res&on!entsH lan!s an! t$e or!er !en'ing t$e a!mission o( t$e amen!e! motion to !ismiss. *t also or!ere! t$e trial co%rt to s%s&en! t$e e4&ro&riation &rocee!ings %ntil a(ter Cams%r s$all $ave s%bmitte! t$e re.%isite a&&roval o( t$e De&artment o( #grarian -e(orm to convert t$e classi(ication o( t$e &ro&ert' o( t$e &rivate res&on!ents (rom agric%lt%ral to nonDagric%lt%ral lan!. Cams%r: its e4ercise o( t$e &o,er o( eminent !omain cannot be restricte! b' t$e &rovisions o( t$e Com&re$ensive #grarian -e(orm La, ;-.#. No. GGC7< &artic%larl' )ection GC t$ereo( ,$ic$ re.%ires t$e a&&roval o( t$e De&artment o( #grarian -e(orm be(ore a &arcel o( lan! can be reclassi(ie! (rom an agric%lt%ral to a nonDagric%lt%ral lan!. C# (ollo,ing t$e recommen!ation o( t$e )olicitor General $el! t$at t$e =rovince o( Cams%r m%st com&l' ,it$ t$e &rovision o( )ection GC o( t$e Com&re$ensive #grarian -e(orm La, an! m%st (irst sec%re t$e a&&roval o( t$e De&artment o( #grarian -e(orm o( t$e &lan to e4&ro&riate t$e lan!s o( t$e )7s *ss%e: 6ON t$e e4&ro&riation o( agric%lt%ral lan!s b' LG@s is s%b9ect to t$e &rior a&&roval o( t$e )ecretar' o( t$e #grarian -e(orm as t$e im&lementator o( t$e agrarian re(orm &rogram. 6$en t$e C# or!ere! t$e s%s&ension o( t$e &rocee!ings %ntil t$e =rovince o( Cams%r s$all $ave obtaine! t$e a%t$orit' o( t$e De&artment o( #grarian -e(orm to c$ange t$e classi(ication o( t$e lan!s so%g$t to be e4&ro&riate! (rom agric%lt%ral to nonDagric%lt%ral %se it ass%me! t$at t$e resol%tion is vali! an! t$at t$e e4&ro&riation is (or a &%blic &%r&ose or &%blic %se. Mo!ernl' t$ere $as been a s$i(t (rom t$e literal to a broa!er inter&retation o( "&%blic &%r&ose" or "&%blic %se" (or ,$ic$ t$e &o,er o( eminent !omain ma' be e4ercise!. 2$e ol! conce&t ,as t$at t$e con!emne! &ro&ert' m%st act%all' be %se! b' t$e general &%blic ;e.g. roa!s bri!ges &%blic &laBas etc.< be(ore t$e ta+ing t$ereo( co%l! satis(' t$e constit%tional re.%irement o( "&%blic %se". @n!er t$e ne, conce&t "&%blic %se" means &%blic a!vantage convenience or bene(it ,$ic$ ten!s to contrib%te to t$e general ,el(are an! t$e &ros&erit' o( t$e ,$ole comm%nit' li+e a resort com&le4 (or to%rists or $o%sing &ro9ect ;Heirs o( 7%anc$o #r!ano v. -e'es 1/C )C-# //5 U1881VA )%m%long v. G%errero 1C0 )C.-# 0G1 U1887V<. 2$e e4&ro&riation o( t$e &ro&ert' a%t$oriBe! b' t$e .%estione! resol%tion is (or a &%blic &%r&ose. 2$e establis$ment o( a &ilot !evelo&ment center ,o%l! in%re to t$e !irect bene(it an! a!vantage o( t$e &eo&le o( t$e =rovince o( Cams%r. Once o&erational t$e center ,o%l! ma+e available to t$e comm%nit' inval%able in(ormation an! tec$nolog' on agric%lt%re (is$er' an! t$e cottage in!%str'. @ltimatel' t$e liveli$oo! o( t$e (armers (is$ermen an! cra(tsmen ,o%l! be en$ance!.. 2$e $o%sing &ro9ect also satis(ies t$e &%blic &%r&ose re.%irement o( t$e Constit%tion. #s $el! in )%m%long v. G%errero 1C0 )C-# 0G1 "Ho%sing is a basic $%man nee!. )$ortage in $o%sing is a matter o( state concern since it !irectl' an! signi(icantl' a((ects &%blic $ealt$ sa(et' t$e environment an! in s%m t$e general ,el(are." 2$e )olicitor General !enigrate! t$e &o,er to e4&ro&riate b' t$e =rovince o( Cams%r b' stressing t$e (act t$at LG@s e4ercise s%c$ &o,er onl' b' !elegation. ;Comment &&. 10D 1CA -ollo &&. 1/8D1/8< Heirs o( 7%anc$o #r!ana v. -e'es: Co%rt sai! t$at t$ere ,as "no nee! %n!er t$e (acts o( t$is &etition to r%le on ,$et$er t$e &%blic &%r&ose is s%&erior or in(erior to anot$er &%r&ose or engage in a balancing o( com&eting &%blic interest " it %&$el! t$e e4&ro&riation a(ter noting t$at &etitioners $a! (aile! to overcome t$e s$o,ing t$at t$e ta+ing o( 8 875 s.%are meters (orme! &art o( t$e resort com&le4. # (air an! reasonable rea!ing o( t$e !ecision is t$at t$is Co%rt vie,e! t$e &o,er o( e4&ro&riation as s%&erior to t$e &o,er to !istrib%te lan!s %n!er t$e lan! re(orm &rogram. *t is tr%e t$at LG@s $ave no in$erent &o,er o( eminent !omain an! can e4ercise it onl' ,$en e4&ressl' a%t$oriBe! b' t$e legislat%re. *t is also tr%e t$at in !elegating t$e &o,er to e4&ro&riate t$e legislat%re ma' retain certain control or im&ose certain restraints on t$e e4ercise t$ereo( b' t$e local governments. 6$ile s%c$ !elegate! &o,er ma' be a limite! a%t$orit' it is com&lete ,it$in its limits. Moreover t$e limitations on t$e e4ercise o( t$e !elegate! &o,er m%st be clearl' e4&resse! eit$er in t$e la, con(erring t$e &o,er or in ot$er legislations.
C1
Mabelle O. Nebres | Local Governments Case Digests -esol%tion No. 1/8 )eries o( 1888 ,as &rom%lgate!
&%rs%ant to )ection 8 o( B.=. Blg. 117 t$e LGC ,$ic$ &rovi!es: # LG@ ma' t$ro%g$ its $ea! an! acting &%rs%ant to a resol%tion o( its sangg%nian e4ercise t$e rig$t o( eminent !omain an! instit%te con!emnation &rocee!ings (or &%blic %se or &%r&ose. )ection 8 o( B.=. Blg. 117 !oes not intimate in t$e least t$at local government %nits m%st (irst sec%re t$e a&&roval o( t$e De&artment o( Lan! -e(orm (or t$e conversion o( lan!s (rom agric%lt%ral to nonDagric%lt%ral %se be(ore t$e' can instit%te t$e necessar' e4&ro&riation &rocee!ings. Li+e,ise t$ere is no &rovision in t$e Com&re$ensive #grarian -e(orm La, ,$ic$ e4&ressl' s%b9ects t$e e4&ro&riation o( agric%lt%ral lan!s b' LG@s to t$e control o( t$e De&artment o( #grarian -e(orm. 2$e closest &rovision o( la, t$at t$e C# co%l! cite to 9%sti(' t$e intervention o( t$e De&artment o( #grarian -e(orm in e4&ro&riation matters is )ection GC o( t$e Com&re$ensive #grarian -e(orm La, ,$ic$ rea!s: )ec. GC. Conversion o( Lan!s. #(ter t$e la&se o( (ive ;C< 'ears (rom its a,ar! ,$en t$e lan! ceases to be economicall' (easible an! so%n! (or agric%lt%ral &%r&oses or t$e localit' $as become %rbaniBe! an! t$e lan! ,ill $ave a greater economic val%e (or resi!ential commercial or in!%strial &%r&oses t$e D#%&on a&&lication o( t$e bene(iciar' or t$e lan!o,ner ,it$ !%e notice to t$e a((ecte! &arties an! s%b9ect to e4isting la,s ma' a%t$oriBe t$e reclassi(ication or conversion o( t$e lan! an! its !is&osition: =rovi!e! 2$at t$e bene(iciar' s$all $ave (%ll' &ai! $is obligation. 2$e o&ening a!verbial &$rase o( t$e &rovision sen!s signals t$at it a&&lies to lan!s &revio%sl' &lace! %n!er t$e agrarian re(orm &rogram as it s&ea+s o( "t$e la&se o( (ive ;C< 'ears (rom its a,ar!." 2$e r%les on conversion o( agric%lt%ral lan!s (o%n! in )ection 0 ;+< an! C ;1< o( 34ec%tive Or!er No. 1/8D# )eries o( 1887 cannot be t$e so%rce o( t$e a%t$orit' o( t$e De&artment o( #grarian -e(orm to !etermine t$e s%itabilit' o( a &arcel o( agric%lt%ral lan! (or t$e &%r&ose to ,$ic$ it ,o%l! be !evote! b' t$e e4&ro&riating a%t$orit'. 6$ile t$ose r%les vest on t$e De&artment o( #grarian -e(orm t$e e4cl%sive a%t$orit' to a&&rove or !isa&&rove conversions o( agric%lt%ral lan!s (or resi!ential commercial or in!%strial %ses s%c$ a%t$orit' is limite! to t$e a&&lications (or reclassi(ication s%bmitte! b' t$e lan! o,ners or tenant bene(iciaries. )tat%tes con(erring t$e &o,er o( eminent !omain to &olitical s%b!ivisions cannot be broa!ene! or constricte! b' im&lication. 2o s%stain t$e C# ,o%l! mean t$at t$e LG@s can no longer e4&ro&riate agric%lt%ral lan!s nee!e! (or t$e constr%ction o( roa!s bri!ges sc$ools $os&itals etc ,it$o%t (irst a&&l'ing (or conversion o( t$e %se o( t$e lan!s ,it$ t$e De&artment o( #grarian -e(orm beca%se all o( t$ese &ro9ects ,o%l! nat%rall' involve a c$ange in t$e lan! %se. *n e((ect it ,o%l! t$en be t$e De&artment o( #grarian -e(orm to scr%tiniBe ,$et$er t$e e4&ro&riation is (or a &%blic &%r&ose or &%blic %se. Or!inaril' it is t$e legislative branc$ o( t$e LG@ t$at s$all !etermine ,$et$er t$e %se o( t$e &ro&ert' so%g$t to be e4&ro&riate! s$all be &%blic t$e same being an e4&ression o( legislative &olic'. 2$e co%rts !e(er to s%c$ legislative !etermination an! ,ill intervene onl' ,$en a &artic%lar %n!erta+ing $as no real or s%bstantial relation to t$e &%blic %se. 2$ere is also an ancient r%le t$at restrictive stat%tes no matter $o, broa! t$eir terms are !o not embrace t$e sovereign %nless t$e sovereign is s&eciall' mentione! as s%b9ect t$ereto. 2$e -e&%blic o( t$e =$ili&&ines as sovereign or its &olitical s%b!ivisions as $ol!ers o( !elegate! sovereign &o,ers cannot be bo%n! b' &rovisions o( la, co%c$e! in general term.
Me#caua#an v. )AC Facts: 2$e =$ili&&ine =i&es an! Merc$an!ising Cor&oration (ile! ,it$ t$e O((ice o( t$e M%nici&al Ma'or o( Me'ca%a'an B%lacan an a&&lication (or a &ermit to (ence a &arcel o( lan!. 2$e (encing o( sai! &ro&ert' ,as allege!l' to enable t$e storage o( t$e res&on!entHs $eav' e.%i&ment an! vario%s (inis$e! &ro!%cts s%c$ as large !iameter steel &i&es &ontoon &i&es (or &orts ,$arves an! $arbors bri!ge com&onents &reDstresse! gir!ers an! &iles large !iameter concrete &i&es an! &arts (or lo, cost $o%sing. *n t$e same 'ear t$e M%nici&al Co%ncil o( Me'ca%a'an $ea!e! b' t$en Ma'or Celso -. Legas&i &asse! -esol%tion No. /C8 )eries o( 187C mani(esting t$e intention to e4&ro&riate t$e res&on!entHs
C0

&arcel o( lan!. 2$e )&ecial Committee recommen!e! t$at t$e =rovincial Boar! o( B%lacan !isa&&rove or ann%l t$e resol%tion in .%estion beca%se t$ere ,as no gen%ine necessit' (or t$e M%nici&alit' o( Me'ca%a'an to e4&ro&riate t$e res&on!entHs &ro&ert' (or %se as a &%blic roa!. On t$e basis o( t$is re&ort t$e =rovincial Boar! o( B%lacan &asse! -esol%tion No. /18 )eries o( 187G !isa&&roving an! ann%lling -esol%tion No. /C8 )eries o( 187C o( t$e M%nici&al Co%ncil o( Me'ca%a'an. ==MC t$en reiterate! to t$e O((ice o( t$e Ma'or its &etition (or t$e a&&roval o( t$e &ermit to (ence t$e a(oresai! &arcels o( lan!. 2$e M%nici&al Co%ncil o( Me'ca%a'an no, $ea!e! b' Ma'or #!riano D. DaeB &asse! -esol%tion No. /1 )eries o( 1881 (or t$e &%r&ose o( e4&ro&riating ane, t$e res&on!entHs lan!. 2$e =rovincial Boar! o( B%lacan a&&rove! t$e a(oresai! resol%tion on 7an%ar' /C 1880. 2$erea(ter t$e &etitioner on Febr%ar' 10 1880 (ile! ,it$ t$e -egional 2rial Co%rt o( Malolos B%lacan Branc$ K* a s&ecial civil action (or e4&ro&riation. @&on !e&osit o( t$e amo%nt o( =/0 5/C.55 ,$ic$ is t$e mar+et val%e o( t$e lan! ,it$ t$e =$ili&&ine National Ban+ t$e trial co%rt on Marc$ 1 1880 iss%e! a ,rit o( &ossession in (avor o( t$e &etitioner. On #%g%st /7 1880 t$e trial co%rt iss%e! an or!er !eclaring t$e ta+ing o( t$e &ro&ert' as la,(%l an! a&&ointing t$e =rovincial #ssessor o( B%lacan as co%rt commissioner ,$o s$all $ol! t$e $earing to ascertain t$e 9%st com&ensation (or t$e &ro&ert'. 2$e res&on!ent ,ent to t$e *nterme!iate #&&ellate Co%rt on &etition (or revie,. On 7an%ar' 15 188C t$e a&&ellate co%rt a((irme! t$e trial co%rtHs !ecision. Ho,ever %&on motion (or reconsi!eration b' t$e res&on!ent t$e !ecision ,as reDe4amine! an! reverse!. 2$e a&&ellate co%rt $el! t$at t$ere is no gen%ine necessit' to e4&ro&riate t$e lan! (or %se as a &%blic roa! as t$ere ,ere several ot$er roa!s (or t$e same &%r&ose an! anot$er more a&&ro&riate lot (or t$e &ro&ose! &%blic roa!. 2$e co%rt ta+ing into consi!eration t$e location an! siBe o( t$e lan! also o&ine! t$at t$e lan! is more *!eal (or %se as storage area (or res&on!entHs $eav' e.%i&ment an! (inis$e! &ro!%cts. M-: !enie!. *ss%e: 6ON t$ere is a gen%ine necessit' to e4&ro&riate t$is stri& o( lan! (or %se as a &%blic roa!. NO. 2$e &etitionerHs &%r&ose in e4&ro&riating t$e res&on!entHs &ro&ert' is to convert t$e same into a &%blic roa! ,$ic$ ,o%l! &rovi!e a connecting lin+ bet,een Mal$acan -oa! an! B%lac -oa! in KalenB%ela B%lacan an! t$ereb' ease t$e tra((ic in t$e area o( ve$icles coming (rom Mac#rt$%r Hig$,a'. 2$e recor!s $o,ever reveals t$at t$ere are ot$er connecting lin+s bet,een t$e a(orementione! roa!s. 2$e &etitioner itsel( a!mits t$at t$ere are (o%r s%c$ cross roa!s in e4istence. 2$e res&on!ent co%rt state! t$at ,it$ t$e &ro&ose! roa! t$ere ,o%l! be seven. 2$e )+etc$ =lan clearl' an! concl%sivel' s$o,s t$at &etitioner !oes not nee! t$is stri& o( lan! as a &rivate roa!. 2$e )+etc$ =lan clearl' s$o,s t$at &etitionerHs (actor' site is a!9acent to B%lac -oa! ,$ic$ $as a ,i!t$ o( abo%t seven meters more or less. =etitioner can %se B%lac -oa! in reac$ing Mc#rt$%r Hig$,a' on t$e ,est or in reac$ing t$e Manila Nort$ 34&ress,a' on t$e east (or t$e &%r&ose o( trans&orting its &ro!%cts. =etitioner !oes not nee! to go to Mal$acan -oa! via t$is soDcalle! &rivate roa! be(ore going to Mc#rt$%r Hig$,a' or to t$e Manila Nort$ 34&ress,a'. 6$' s$o%l! &etitioner go (irst to Mal$acan -oa! via t$is so calle! "&rivate roa!" be(ore going to Mc#rt$%r Hig$,a' or to t$e Manila Nort$ 34&ress,a' ,$en ta+ing t$e B%lac -oa! in going to Mc#rt$%r Hig$,a' or to t$e Manila Nort$ 34&ress,a' is more !irect nearer an! more a!vantageo%s. Hence it is be'on! !o%bt t$at &etitioner ac.%ire! t$is stri& o( lan! (or t$e storage o( its $eav' e.%i&ments an! vario%s (inis$e! &ro!%cts an! (or gro,t$ an! e4&ansion an! never to %se it as a &rivate roa!. 2$is is t$e ver' reason ,$' &etitioner (ile! an a&&lication ,it$ t$e O((ice o( t$e M%nici&al Ma'or o( Me'ca%a'an B%lacan to (ence ,it$ $ollo, bloc+s t$is stri& o( lan!. From t$e (oregoing (acts it a&&ears obvio%s to t$is )&ecial Committee t$at t$ere is no gen%ine necessit' (or t$e M%nici&alit' o(H Me'ca%a'an to e4&ro&riate t$e a(oresai! &ro&ert' o( t$e =$ili&&ine =i&es an! Merc$an!ising Cor&oration (or %se as a &%blic roa!. Consi!ering t$at in t$e vicinit' t$ere are ot$er available roa! an! vacant lot o((ere! (or sale sit%ate! similarl' as t$e lot in .%estion an! l'ing *!le %nli+e t$e lot so%g$t to be e4&ro&riate! ,$ic$ ,as (o%n! b' t$e Committee to be ba!l' nee!e! b' t$e com&an' as a site (or its $eav' e.%i&ment a(ter it is (ence! toget$er ,it$ t$e a!9oining vacant lot t$e 9%sti(ication to con!emn t$e same !oes not a&&ear to be ver' im&erative an! necessar' an! ,o%l! onl' ca%se %n9%sti(ie! !amage to
CC

t$e (irm. 2$e !esire o( t$e M%nici&alit' o( Me'ca%a'an to b%il! a &%blic roa! to !econgest t$e vol%me o( tra((ic can be (%ll' an! better attaine! b' ac.%iring t$e ot$er available roa!s in t$e vicinit' ma'be at lesser costs ,it$o%t ca%sing $arm to an establis$ment !oing legitimate b%siness t$erein. Or t$e m%nici&alit' ma' see+ to e4&ro&riate a &ortion o( t$e vacant lot also in t$e vicinit' o((ere! (or sale (or a ,i!er &%blic roa! to attain !econgest ;sic< o( tra((ic beca%se as observe! b' t$e Committee t$e lot o( t$e Cor&oration so%g$t to be ta+en ,ill onl' accommo!ate a oneD,a' tra((ic lane an! t$ere(ore ,ill not s%((ice to im&rove an! !econgest t$e (lo, o( tra((ic an! &e!estrians in t$e Mal$acan area. ... *t m%st be note! t$at t$is stri& o( lan! covere! b' 2rans(er Certi(icates o( 2itles Nos. /1C1GC an! 17878 ,ere ac.%ire! b' &etitioner (rom Dr. Killacorta. 2$e lot (or sale an! l'ing *!le ,it$ an area o( 1G 571 s.%are meter ,$ic$ is a!9acent an! on t$e ,estern si!e o( t$e a(oresai! stri& o( lan! an! e4ten!s li+e,ise (rom B%lac -oa! to Mal$acan -oa! belongs also to Dr. Killacorta. 2$is lot (or sale an! l'ing *!le is most *!eal (or %se as a &%blic roa! beca%se it is more t$an t$ree ;1< times ,i!er t$at t$e sai! stri& o( lan!. )ince t$ere is anot$er lot rea!' (or sale an! l'ing *!le a!9acent an! on t$e ,estern si!e o( t$e stri& o( lan! an! e4ten!ing also (rom Mal$acan -oa! to B%lac -oa! an! most *!eal (or a &%blic roa! beca%se it is ver' m%c$ ,i!er t$an t$e lot so%g$t to be e4&ro&riate! it seems t$at it is more 9%st (air an! reasonable i( t$is lot is t$e one to be e4&ro&riate!. 2$e &etitioner ob9ects to t$e a&&ellate co%rtHs (in!ings conten!ing t$at t$e' ,ere base! on (acts obtaining long be(ore t$e &resent action to e4&ro&riate too+ &lace. 6e note $o,ever t$at t$ere is no evi!ence on recor! ,$ic$ s$o,s a c$ange in t$e (act%al circ%mstances o( t$e case. 2$ere is no s$o,ing t$at some o( t$e si4 ot$er available cross roa!s $ave been close! or t$at t$e &rivate roa!s in t$e s%b!ivision ma' not be %se! (or m%nici&al &%r&oses. 6$at is more li+el' is t$at t$ese roa!s $ave alrea!' been t%rne! over to t$e government. 2$e &etitioner alleges t$at s%rel' t$e environmental &rogress !%ring t$e s&an o( seven 'ears bet,een t$e (irst an! secon! attem&ts to e4&ro&riate $as bro%g$t abo%t a c$ange in t$e (acts o( t$e case. 2$is allegation !oes not merit consi!eration absent a s$o,ing o( concrete evi!ence attesting to it. 2$ere is no .%estion $ere as to t$e rig$t o( t$e )tate to ta+e &rivate &ro&ert' (or &%blic %se %&on &a'ment o( 9%st com&ensation. 6$at is .%estione! is t$e e4istence o( a gen%ine necessit' t$ere(or. Cit' o( Manila v. C$inese Comm%nit' o( Manila: t$is Co%rt $el! t$at t$e (o%n!ation o( t$e rig$t to e4ercise t$e &o,er o( eminent !omain is gen%ine necessit' an! t$at necessit' m%st be o( a &%blic c$aracter. Con!emnation o( &rivate &ro&ert' is 9%sti(ie! onl' i( it is (or t$e &%blic goo! an! t$ere is a gen%ine necessit' o( a &%blic c$aracter. Conse.%entl' t$e co%rts $ave t$e &o,er to in.%ire into t$e legalit' o( t$e e4ercise o( t$e rig$t o( eminent !omain an! to !etermine ,$et$er t$ere is a gen%ine necessit' t$er(or. De Mnec$t v. Ba%tista t$is co%rt (%rt$er r%le! t$at t$e government ma' not ca&ricio%sl' c$oose ,$at &rivate &ro&ert' s$o%l! be ta+en. Citing t$e case o( 7.M. 2%ason P Co. *nc. v. Lan! 2en%re #!ministration ;s%&ra< t$e Co%rt $el!: 6it$ !%e recognition t$en o( t$e &o,er o( Congress to !esignate t$e &artic%lar &ro&ert' to be ta+en an! $o, m%c$ t$ereo( ma' be con!emne! in t$e e4ercise o( t$e &o,er o( e4&ro&riation it is still a 9%!icial .%estion ,$et$er in t$e e4ercise o( s%c$ com&etence t$e &art' a!versel' a((ecte! is t$e victim o( &artialit' an! &re9%!ice. 2$at t$e e.%al &rotection cla%se ,ill not allo,. 2$ere is absol%tel' no s$o,ing in t$e &etition ,$' t$e more a&&ro&riate lot (or t$e &ro&ose! roa! ,$ic$ ,as o((ere! (or sale $as not been t$e s%b9ect o( t$e &etitionerHs attem&t to e4&ro&riate ass%ming t$ere is a real nee! (or anot$er connecting roa!.
,apocor v. +ocson Facts: 2$e N=C (ile! (or t$e ac.%isition o( a rig$tDo(D,a' easement over &ortions o( t$e &arcels o( lan! !escribe! in t$e com&laints (or its NegrosD=ana' *nterconnection =ro9ect &artic%larl' t$e Bacolo!D 2omonton 2ransmission Line. =rovisional val%es ,ere (i4e! on t$e basis o( t$e mar+et val%e an! t$e !ail' o&&ort%nit' &ro(it &etitioner ma' !erive. -es&on!ents so%g$t a reDeval%ation. 7%!ge increase! val%e ,it$o%t $earing an! !irecting t$e !e(en!ants to mani(est ,it$in t,ent'D(o%r ;/0< $o%rs ,$et$er or not t$e' are acce&ting
CG

an! ,it$!ra,ing t$e amo%nts re&resenting t$e &rovisional val%es !e&osite! b' t$e &lainti(( (or eac$ o( t$em as "(inal an! (%ll satis(action o( t$e val%e o( t$eir res&ective &ro&ert' ;sic<A " 7%!ge !eclare! t$e &rovisional val%es as t$e (inal val%es an! !irecting t$e release o( t$e amo%nts !e&osite! in (%ll satis(action t$ereo( to t$e !e(en!ants even i( not all o( t$em ma!e t$e mani(estationA an! s%s&en!e! t$e iss%ance o( t$e ,rit o( &ossession %ntil a(ter t$e s%s&en!ing t$e amo%nts s$all $ave been release! to an! receive! b' !e(en!ants. *ss%e: 6ON 7%!ge 7ocson committe! grave ab%se o( !iscretion amo%nting to lac+ o( 9%ris!iction. :3). M%nici&alit' o( BiRan vs. Hon. 7ose Mar Garcia et al: t$ere are t,o ;/< stages in ever' action o( e4&ro&riation: 2$e (irst is concerne! ,it$ t$e !etermination o( t$e a%t$orit' o( t$e &lainti(( to e4ercise t$e &o,er o( eminent !omain an! t$e &ro&riet' o( its e4ercise in t$e conte4t o( t$e (acts involve! in t$e s%it. *t en!s ,it$ an or!er i( not o( !ismissal o( t$e action "o( con!emnation !eclaring t$at t$e &lainti(( $as a la,(%l rig$t to ta+e t$e &ro&ert' so%g$t to be con!emne! (or t$e &%blic %se or &%r&ose !escribe! in t$e com&laint %&on t$e &a'ment o( 9%st com&ensation to be !etermine! as o( t$e !ate o( t$e (iling o( t$e com&laint." #n or!er o( !ismissal i( t$is be or!aine! ,o%l! be a (inal one o( co%rse since it (inall' !is&oses o( t$e action an! leaves not$ing more to be !one b' t$e Co%rt on t$e merits. )o too ,o%l! an or!er o( con!emnation be a (inal one (or t$erea(ter as t$e -%les e4&ressl' state in t$e &rocee!ings be(ore t$e 2rial Co%rt "no ob9ection to t$e e4ercise o( t$e rig$t o( con!emnation ;or t$e &ro&riet' t$ereo(< s$all be (ile! or $ear!." 2$e secon! &$ase o( t$e eminent !omain action is concerne! ,it$ t$e !etermination b' t$e Co%rt o( t$e "9%st com&ensation (or t$e &ro&ert' so%g$t to be ta+en." 2$is is !one b' t$e Co%rt ,it$ t$e assistance o( not more t$an t$ree ;1< commissioners. 2$e or!er (i4ing t$e 9%st com&ensation on t$e basis o( t$e evi!ence be(ore an! (in!ings o( t$e commissioners ,o%l! be (inal too. *t ,o%l! (inall' !is&ose o( t$e secon! stage o( t$e s%it an! leave not$ing more to be !one b' t$e Co%rt regar!ing t$e iss%e. . . . Ho,ever %&on t$e (iling o( t$e com&laint or at an' time t$erea(ter t$e &etitioner $as t$e rig$t to ta+e or enter %&on t$e &ossession o( t$e &ro&ert' involve! %&on com&liance ,it$ =.D. No. 0/ ,$ic$ re.%ires t$e &etitioner a(ter !%e notice to t$e !e(en!ant to !e&osit ,it$ t$e =$ili&&ine National Ban+ in its main o((ice or an' o( its branc$es or agencies "an amo%nt e.%ivalent to t$e assesse! val%e o( t$e &ro&ert' (or &%r&oses o( ta4ation." 2$is assesse! val%e is t$at in!icate! in t$e ta4 !eclaration. =.D. No. 0/ re&eale! t$e "&rovisions o( -%le G7 o( t$e -%les o( Co%rt an! o( an' ot$er e4isting la, contrar' to or inconsistent" ,it$ it. #ccor!ingl' it re&eale! )ection / o( -%le G7 inso(ar as t$e !etermination o( t$e &rovisional val%e t$e (orm o( &a'ment an! t$e agenc' ,it$ ,$ic$ t$e !e&osit s$all be ma!e are concerne!. )ai! section rea!s in (%ll as (ollo,s: )ec. /. 3ntr' o( &lainti(( %&on !e&ositing val%e ,it$ National or =rovisional 2reas%rer. S @&on t$e (iling o( t$e com&laint or at an' time t$erea(ter t$e &lainti(( s$all $ave t$e rig$t to ta+e or enter %&on t$e &ossession o( t$e real or &ersonal &ro&ert' involve! i( $e !e&osits ,it$ t$e National or =rovincial 2reas%rer its val%e as &rovisionall' an! &rom&tl' ascertaine! an! (i4e! b' t$e co%rt $aving 9%ris!iction o( t$e &rocee!ings to be $el! b' s%c$ treas%rer s%b9ect to t$e or!ers an! (inal !is&osition o( t$e co%rt. )%c$ !e&osit s$all be in mone' %nless in lie% t$ereo( t$e co%rt a%t$oriBes t$e !e&osit o( a certi(icate o( !e&osit o( a !e&ositor' o( t$e -e&%blic o( t$e =$ili&&ines &a'able on !eman! to t$e National or =rovincial 2reas%rer as t$e case ma' be in t$e amo%nt !irecte! b' t$e co%rt to be !e&osite!. #(ter s%c$ !e&osit is ma!e t$e co%rt s$all or!er t$e s$eri(( or ot$er &ro&er o((icer to (ort$,it$ &lace t$e &lainti(( in &ossession o( t$e &ro&ert' involve!. *t ,ill be note! t$at %n!er t$e a(ore.%ote! section t$e co%rt $as t$e !iscretion to !etermine t$e &rovisional val%e ,$ic$ m%st be !e&osite! b' t$e &lainti(( to enable it "to ta+e or enter %&on t$e &ossession o( t$e &ro&ert'." Notice to t$e &arties is not in!is&ensable. *n inter&reting a similar &rovision o( #ct No. 1C8/ t$is Co%rt in t$e 181C case o( Manila -ailroa! Com&an' et al. vs. =are!es et al. 0C $el!: 2$e stat%te !irects t$at at t$e ver' o%tset ",$en con!emnation &rocee!ings are bro%g$t b' an' rail,a' cor&oration" t$e amo%nt o( t$e !e&osit is to be "&rovisionall' an! &rom&tl' ascertaine! an! (i4e! b' t$e co%rt." *t is ver' clear t$at it ,as not t$e intention o( t$e
C7

legislator t$at be(ore t$e or!er (i4ing t$e amo%nt o( t$e !e&osit co%l! la,(%ll' be entere! t$e co%rt s$o%l! (inall' an! !e(initel' !etermine ,$o are t$e tr%e o,ners o( t$e lan!A an! a(ter !oing so give t$em a $earing as to its val%e an! assess t$e tr%e val%e o( t$e lan! accor!ingl'. *n e((ect t$at ,o%l! amo%nt to a !enial o( t$e rig$t o( &ossession o( t$e lan!s involve! %ntil t$e concl%sion o( t$e &rocee!ings ,$en t$ere ,o%l! no nee! (or t$e (iling o( t$e !e&osit. O( co%rse t$ere is not$ing in t$e stat%te ,$ic$ !enies t$e rig$t o( t$e 9%!ge to $ear all &ersons claiming an interest in t$e lan! an! co%rts s$o%l! or!inaril' give all s%c$ &ersons an o&&ort%nit' to be $ear! i( t$at be &racticable an! ,ill ca%se no !ela' in t$e &rom&t an! &rovisional ascertainment o( t$e val%e o( t$e lan!. B%t t$e sco&e an! e4tent o( t$e in.%ir' is le(t ,$oll' in t$e !iscretion o( t$e co%rt an! a (ail%re to $ear t$e o,ners an! claimants o( t$e lan! ,$o ma' or ma' not be +no,n at t$e time o( t$e entr' o( t$e or!er in no ,ise e((ects t$e vali!it' o( t$e or!er. . . . =.D. No. 0/ $o,ever e((ectivel' removes t$e !iscretion o( t$e co%rt in !etermining t$e &rovisional val%e. 6$at is to be !e&osite! is an amo%nt e.%ivalent to t$e assesse! val%e (or ta4ation &%r&ose. No $earing is re.%ire! (or t$at &%r&ose. #ll t$at is nee!e! is notice to t$e o,ner o( t$e &ro&ert' so%g$t to be con!emne!. Clearl' t$ere(ore res&on!ent 7%!ge eit$er !eliberatel' !isregar!e! =.D. No. 0/ or ,as totall' %na,are o( its e4istence an! t$e cases a&&l'ing t$e same. *n an' event &etitioner !e&osite! t$e &rovisional val%e (i4e! b' t$e co%rt. #s a matter o( rig$t it ,as entitle! to be &lace! in &ossession o( t$e &ro&ert' involve! in t$e com&laints at once &%rs%ant to bot$ )ection / o( -%le G7 an! =.D. No. 0/. -es&on!ent Co%rt $a! t$e corres&on!ing !%t' to or!er t$e s$eri(( or an' ot$er &ro&er o((icer to (ort$,it$ &lace t$e &etitioner in s%c$ &ossession. *nstea! o( com&l'ing ,it$ t$e clear man!ate o( t$e la, res&on!ent 7%!ge c$ose to ignore an! overloo+ it. Moreover %&on se&arate motions (or reconsi!eration (ile! b' t$e !e(en!ants in Civil Cases Nos. C818 an! C818 $e iss%e! a ne, Or!er increasing t$e &rovisional val%es o( t$e &ro&erties involve! t$erein. No $earing ,as $el! on t$e motions. #s a matter o( (act as t$e recor!s s$o, t$e motion (or reconsi!eration (ile! b' !e(en!ants 7es%s GonBaga et al. in Civil Case No. C818 is !ate! 11 7%l' 1885 ,$ile t$e Or!er granting bot$ motions ,as iss%e! t$e ne4t !a' 1/ 7%l' 1885. 2$e motion (or reconsi!eration in Civil Case No. C818 !oes not even contain a notice o( $earing. *t is t$en a mere scra& o( &a&erA it &resents no .%estion ,$ic$ merits t$e attention an! consi!eration o( t$e co%rt. *t is not even a mere motion (or it !oes not com&l' ,it$ t$e r%les more &artic%larl' )ections 0 an! C -%le 1C o( t$e -%les o( Co%rtA t$e Cler+ o( Co%rt t$en $a! no rig$t to receive it. C5 2$ere ,as moreover a m%c$ stronger reason ,$' t$e res&on!ent Co%rt s$o%l! not $ave iss%e! t$e 1/ 7%l' 1885 Or!er increasing t$e &rovisional val%es o( t$e GonBaga lots in Civil Cases Nos. C818 an! C818. #(ter $aving (i4e! t$ese &rovisional val%es albeit erroneo%sl' an! %&on !e&osit b' &etitioner o( t$e sai! amo%nts res&on!ent 7%!ge lost as ,as $el! in Manila -ailroa! Com&an' vs. =are!es "&lenar' control over t$e or!er (i4ing t$e amo%nt o( t$e !e&osit an! $as no &o,er to ann%l amen! or mo!i(' it in matters o( s%bstance &en!ing t$e co%rse o( t$e con!emnation &rocee!ings." 2$e reason (or t$is is t$at a contrar' r%ling ,o%l! !e(eat t$e ver' &%r&ose o( t$e la, ,$ic$ is to &rovi!e a s&ee!' an! s%mmar' &roce!%re ,$ereb' t$e &eaceable &ossession o( t$e &ro&ert' s%b9ect o( t$e e4&ro&riation &rocee!ings "ma' be sec%re! ,it$o%t t$e !ela's inci!ent to &rolonge! an! ve4atio%s litigation to%c$ing t$e o,ners$i& an! val%e o( s%c$ lan!s ,$ic$ s$o%l! not be &ermitte! to !ela' t$e &rogress o( t$e ,or+." Com&o%n!ing t$e above error an! t$e ca&ricio%sness ,it$ ,$ic$ it ,as committe! is res&on!ent 7%!geHs re(%sal to &lace t$e &etitioner in &ossession o( t$e &ro&ert' or iss%e t$e ,rit o( &ossession !es&ite t$e (act t$at t$e latter $a! li+e,ise !e&osite! t$e a!!itional amo%nt calle! (or b' t$e 1/ 7%l' 1885 Or!er. *nstea! res&on!ent 7%!ge iss%e! t$e 1G 7%l' 1885 Or!er !irecting t$e !e(en!ants to state in ,riting ,it$in t,ent'D(o%r ;/0< $o%rs ,$et$er or not t$e' ,o%l! acce&t an! ,it$!ra, t$e amo%nts !e&osite! b' t$e &etitioner (or eac$ o( t$em " as (inal an! (%ll satis(action o( t$e val%e o( t$eir res&ective &ro&ert' ;sic< a((ecte! b' t$e e4&ro&riation" an! stating at t$e same time t$at t$e ,rit ,ill be iss%e! a(ter s%c$ mani(estation an! acce&tance an! recei&t o( t$e amo%nts. 2$e above Or!er $as absol%tel' no legal basis even as it also %n9%stl' o&&ressivel' an!
C8

ca&ricio%sl' com&els t$e &etitioner to acce&t t$e res&on!ent 7%!geHs !etermination o( t$e &rovisional val%e as t$e 9%st com&ensation a(ter t$e !e(en!ants s$all $ave mani(este! t$eir con(ormit' t$ereto. He t$%s s%bor!inate! $is o,n 9%!gment to t$at o( t$e !e(en!antsH beca%se $e ma!e t$e latter t$e (inal a%t$orit' to !etermine s%c$ 9%st com&ensation. 2$is Co%rt r%le! in 34&ort =rocessing Zone #%t$orit' vs. D%la' et al. C/ t$at t$e !etermination o( 9%st com&ensation in eminent !omain cases is a 9%!icial (%nctionA accor!ingl' 6e !eclare! as %nconstit%tional an! voi! (or being inter alia im&ermissible encroac$ment on 9%!icial &rerogatives ,$ic$ ten!s to ren!er t$e Co%rt in%tile in a matter ,$ic$ %n!er t$e Constit%tion is reserve! to it (or (inal !etermination t$e met$o! o( ascertaining 9%st com&ensation &rescribe! in =.D. Nos. 7G 0G0 780 an! 1C11 to ,it: t$e mar+et val%e as !eclare! b' t$e o,ner or a!ministrator or s%c$ mar+et val%e as !etermine! b' t$e assessor ,$ic$ever is lo,er in t$e (irst t$ree ;1< !ecrees an! t$e val%e !eclare! b' t$e o,ner or a!ministrator or an'one $aving legal interest in t$e &ro&ert' or t$e val%e as !etermine! b' t$e assessor &%rs%ant to t$e -eal =ro&ert' 2a4 Co!e ,$ic$ever is lo,er &rior to t$e recommen!ation or !ecision o( t$e a&&ro&riate Government o((ice to ac.%ire t$e &ro&ert' in t$e last mentione! !ecree. *( t$e legislat%re or t$e e4ec%tive !e&artment cannot even im&ose %&on t$e co%rt $o, 9%st com&ensation s$o%l! be !etermine! it ,o%l! be (ar more ob9ectionable an! im&ermissible (or res&on!ent 7%!ge to grant t$e !e(en!ants in an eminent !omain case s%c$ &o,er an! a%t$orit'. 6it$o%t &er$a&s inten!ing it to be so t$ere is not onl' a clear case o( ab!ication o( 9%!icial &rerogative b%t also a com&lete !isregar! b' res&on!ent 7%!ge o( t$e &rovisions o( -%le G7 as to t$e &roce!%re to be (ollo,e! a(ter t$e &etitioner $as !e&osite! t$e &rovisional val%e o( t$e &ro&ert'. *t m%st be recalle! t$at t$ree ;1< sets o( !e(en!ants (ile! motions to !ismiss &%rs%ant to )ection 1 -%le G7 o( t$e -%les o( Co%rtA )ection 0 o( t$e same r%le &rovi!es t$at t$e co%rt m%st r%le on t$em an! in t$e event t$at it overr%les t$e motions or ,$en an' &art' (ails to &resent a !e(ense as re.%ire! in )ection 1 it s$o%l! enter an or!er o( con!emnation !eclaring t$at t$e &etitioner $as a la,(%l rig$t to ta+e t$e &ro&ert' so%g$t to be con!emne!. #s ma' be gleane! (rom t$e /C 7%ne 1885 Or!er t$e res&on!ent 7%!ge (o%n! t$at t$e &etitioner $as t$at rig$t an! t$at "t$ere ,ill be a ;sic< &aramo%nt &%blic interest to be serve! b' t$e e4&ro&riation o( t$e !e(en!antsH &ro&erties." #ccor!ingl' consi!ering t$at t$e &arties s%bmitte! neit$er a com&romise agreement as to t$e 9%st com&ensation nor a sti&%lation to !is&ense ,it$ t$e a&&ointment o( commissioners an! to leave t$e !etermination o( 9%st com&ensation to t$e co%rt on t$e basis o( certain criteria res&on!ent 7%!ge ,as !%t' bo%n! to set in motion )ection C o( -%le G7A sai! section !irects t$e co%rt to a&&oint not more t$an t$ree ;1< com&etent an! !isintereste! &ersons as commissioners to ascertain an! re&ort to it regar!ing t$e 9%st com&ensation (or t$e &ro&ert' so%g$t to be ta+en. )%c$ commissioners s$all &er(orm t$eir !%ties in t$e manner &rovi!e! (or in )ection GA %&on t$e (iling o( t$eir re&ort t$e co%rt ma' a(ter a &erio! o( ten ;15< !a's ,$ic$ it m%st grant to t$e &arties in or!er t$at t$e latter ma' (ile t$eir ob9ections to s%c$ re&ort an! a(ter $earing &%rs%ant to )ection 8 acce&t an! ren!er 9%!gment in accor!ance t$ere,it$ or (or ca%se s$o,n recommit t$e same to t$e commissioners (or (%rt$er re&ort o( (acts. 2$e co%rt ma' also set asi!e t$e re&ort an! a&&oint ne, commissioners or it ma' acce&t t$e re&ort in &art an! re9ect it in &artA an! it ma' ma+e s%c$ or!er or ren!er s%c$ 9%!gment as s$all sec%re to t$e &etitioner t$e &ro&ert' essential to t$e e4ercise o( its rig$t o( con!emnation an! to t$e !e(en!ant 9%st com&ensation (or t$e &ro&ert' so ta+en. Not satis(ie! ,it$ t$e (oregoing violations o( la, an! insisting %&on $is o,n &roce!%re res&on!ent 7%!ge !eclare! in $is Or!er o( 18 7%l' 1885 t$at t$e &rovisional amo%nts $e (i4e! later increase! ,it$ res&ect to t$e &ro&erties o( t$e GonBagas s$all be consi!ere! as t$e (%ll &a'ment o( t$e val%e o( t$e &ro&erties a(ter t$e !e(en!ants in Civil Cases Nos. C818 C818 C805 C80/ an! C801 s$all $ave (ile! t$eir mani(estationsA $e also r%le! t$at t$e ,rit o( &ossession ,ill be iss%e! onl' a(ter t$e latter s$all $ave receive! t$e sai! amo%nts. 2$is Or!er an! t$e recor!s be(ore t$is Co%rt !o not !isclose t$at t$e !e(en!ants in Civil Cases Nos. C801 an! C800 (ile! an' mani(estationA 'et in t$e Or!er res&on!ent 7%!ge ,$imsicall' an! arbitraril' consi!ere! t$e soDcalle! &rovisional val%es (i4e! t$erein as
C8

t$e (inal val%es. B' s%c$ Or!er t$e case ,as in (act terminate! an! t$e ,rit o( e4ec%tion t$en became a mere inci!ent o( an e4ec%tion o( a 9%!gment. 2$e rig$t o( t$e &etitioner to ta+e or enter into &ossession o( t$e &ro&ert' %&on t$e (iling o( t$e com&laint grante! b' )ection / o( -%le G7 an! =.D. No. 0/ ,as totall' negate! !es&ite com&liance ,it$ t$e !e&osit re.%irement %n!er t$e latter la,. Cit' Government o( 2ole!o Cit' vs. Fernan!os et al: !oes not a&&l' to t$e instant &etition beca%se at t$e &reDtrial con(erence $el! t$erein t$e &etitioner s%bmitte! to t$e !iscretion o( t$e co%rt as to t$e correct val%ation &rivate res&on!ents state! t$at t$e' $ave no ob9ections an! are in con(ormit' ,it$ t$e &rice o( =15.55 &er s.%are meter as reasonable com&ensation (or t$eir lan! an! t$e Cit' #ssessor in(orme! t$e co%rt o( t$e c%rrent mar+et an! a&&raisal val%es o( t$e &ro&erties in t$e area an! t$e (actors to be consi!ere! in t$e !etermination o( s%c$. 2$e &arties &resente! t$eir !oc%mentar' e4$ibits. *n e((ect t$ere(ore t$e &arties t$emselves agree! to s%bmit to a 9%!icial !etermination on t$e matter o( 9%st com&ensation an! t$at 9%!gment be ren!ere! base! t$ereon. *n t$e instant case no &reDtrial ,as con!%cte!A t$e &rocee!ings ,ere still at t$at state ,$ere t$e &rovisional val%e ,as 'et to be !etermine!A an! t$e &arties ma!e no agreement on 9%st com&ensation. <uezon Cit# v. %ricta Facts: WC &asse! an Or!inance reg%lating t$e establis$ment maintenance an! o&eration o( &rivate memorial t'&e cemeter' or b%rial gro%n! ,it$in t$e 9%ris!iction o( WC. )ection 8 o( t$e Or!inance &rovi!es t$at at least GY o( t$e total area o( a memorial &ar+ cemeter' s$all be set asi!e (or c$arit' b%rial o( !ecease! &ersons ,$o are &a%&ers P $ave been resi!ents o( WC (or at least C 'ears &rior to t$eir !eat$. )even 'ears a(ter t$e enactment o( t$e Or!inance t$e WC Co%ncil &asse! a resol%tion re.%esting t$e Cit' 3ngineer to sto& an' (%rt$er selling o( memorial &ar+s in WC ,$ere t$e o,ners $ave (aile! to !onate t$e re.%ire! GY cemeter' s&ace. 2$e Cit' 3ngineer noti(ie! Himla'ang =ili&ino *nc. t$at t$e Or!inance ,o%l! be en(orce! so Himla'an (ile! a &etition ,it$ t$e CF* see+ing to ann%l )ec 8 o( t$e Or!inance. CF* !eclare! )ec 8 n%ll an! voi!. M-: !enie! *ss%e: 6ON t$e or!inance is a%t$oriBe! %n!er WC C$arter an! a vali! e4ercise o( &olice &o,er. NO. -estatement o( certain basic &rinci&les: Occ%&'ing t$e (ore(ront in t$e bill o( rig$ts is t$e &rovision ,$ic$ states t$at Hno &erson s$all be !e&rive! o( li(e libert' or &ro&ert' ,it$o%t !%e &rocess o( la,H ;#rt. *ll )ection 1 s%b&aragra&$ 1 Constit%tion<. On t$e ot$er $an! t$ere are t$ree in$erent &o,ers o( government b' ,$ic$ t$e state inter(eres ,it$ t$e &ro&ert' rig$ts namel'D. ;1< &olice &o,er ;/< eminent !omain ;1< ta4ation. 2$ese are sai! to e4ist in!e&en!entl' o( t$e Constit%tion as necessar' attrib%tes o( sovereignt'. =olice &o,er is !e(ine! b' Fre%n! as Ht$e &o,er o( &romoting t$e &%blic ,el(are b' restraining an! reg%lating t$e %se o( libert' an! &ro&ert'H ;W%ote! in =olitical La, b' 2ana!a an! Carreon KD11 &. C5<. *t is %s%all' e4erte! in or!er to merel' reg%late t$e %se an! en9o'ment o( &ro&ert' o( t$e o,ner. *( $e is !e&rive! o( $is &ro&ert' o%trig$t it is not ta+en (or &%blic %se b%t rat$er to !estro' in or!er to &romote t$e general ,el(are. *n &olice &o,er t$e o,ner !oes not recover (rom t$e government (or in9%r' s%staine! in conse.%ence t$ereo( ;1/ C.7. G/1<. *t $as been sai! t$at &olice &o,er is t$e most essential o( government &o,ers at times t$e most insistent an! al,a's one o( t$e least limitable o( t$e &o,ers o( government ;-%b' vs. =rovincial Boar! 18 =$iL GG5A *c$ong vs. Hernan!eB 1 788C Ma' 11 18C7<. 2$is &o,er embraces t$e ,$ole s'stem o( &%blic reg%lation ;@.). vs. Lins%'a Fan 15 =$iL 150<. 2$e )%&reme Co%rt $as sai! t$at &olice &o,er is so (arDreac$ing in sco&e t$at it $as almost become im&ossible to limit its s,ee&. #s it !erives its e4istence (rom t$e ver' e4istence o( t$e state itsel( it !oes not nee! to be e4&resse! or !e(ine! in its sco&e. Being coe4tensive ,it$ sel(D&reservation an! s%rvival itsel( it is t$e most &ositive an! active o( all governmental &rocesses t$e most essential insistent an! illimitable 3s&eciall' it is so %n!er t$e mo!ern !emocratic (rame,or+ ,$ere t$e !eman!s o( societ' an! nations $ave m%lti&lie! to almost %nimaginable &ro&ortions. 2$e (iel! an! sco&e o( &olice &o,er $ave become almost bo%n!less 9%st as t$e (iel!s o( &%blic interest an! &%blic ,el(are $ave become almost all embracing an! $ave transcen!e! $%man
G5

(oresig$t. )ince t$e Co%rts cannot (oresee t$e nee!s an! !eman!s o( &%blic interest an! ,el(are t$e' cannot !elimit be(ore$an! t$e e4tent or sco&e o( t$e &olice &o,er b' ,$ic$ an! t$ro%g$ ,$ic$ t$e state see+s to attain or ac$ieve &%blic interest an! ,el(are. ;*c$ong vs. Hernan!eB LD788C Ma' 11 18C7<. 2$e &olice &o,er being t$e most active &o,er o( t$e government an! t$e !%e &rocess cla%se being t$e broa!est station on governmental &o,er t$e con(lict bet,een t$is &o,er o( government an! t$e !%e &rocess cla%se o( t$e Constit%tion is o(tentimes inevitable. *t ,ill be seen (rom t$e (oregoing a%t$orities t$at &olice &o,er is %s%all' e4ercise! in t$e (orm o( mere reg%lation or restriction in t$e %se o( libert' or &ro&ert' (or t$e &romotion o( t$e general ,el(are. *t !oes not involve t$e ta+ing or con(iscation o( &ro&ert' ,it$ t$e e4ce&tion o( a (e, cases ,$ere t$ere is a necessit' to con(iscate &rivate &ro&ert' in or!er to !estro' it (or t$e &%r&ose o( &rotecting t$e &eace an! or!er an! o( &romoting t$e general ,el(are as (or instance t$e con(iscation o( an illegall' &ossesse! article s%c$ as o&i%m an! (irearms. *t seems to t$e co%rt t$at )ection 8 o( Or!inance No. G118 )eries o( 18G0 o( W%eBon Cit' is not a mere &olice reg%lation b%t an o%trig$t con(iscation. *t !e&rives a &erson o( $is &rivate &ro&ert' ,it$o%t !%e &rocess o( la, na' even ,it$o%t com&ensation. 2$ere is no reasonable relation bet,een t$e setting asi!e o( at least si4 ;G< &ercent o( t$e total area o( an &rivate cemeteries (or c$arit' b%rial gro%n!s o( !ecease! &a%&ers an! t$e &romotion o( $ealt$ morals goo! or!er sa(et' or t$e general ,el(are o( t$e &eo&le. 2$e or!inance is act%all' a ta+ing ,it$o%t com&ensation o( a certain area (rom a &rivate cemeter' to bene(it &a%&ers ,$o are c$arges o( t$e m%nici&al cor&oration. *nstea! o( b%il!ing or maintaining a &%blic cemeter' (or t$is &%r&ose t$e cit' &asses t$e b%r!en to &rivate cemeteries. 2$e e4&ro&riation ,it$o%t com&ensation o( a &ortion o( &rivate cemeteries is not covere! b' )ection 1/;t< o( -e&%blic #ct C17 t$e -evise! C$arter o( W%eBon Cit' ,$ic$ em&o,ers t$e cit' co%ncil to &ro$ibit t$e b%rial o( t$e !ea! ,it$in t$e center o( &o&%lation o( t$e cit' an! to &rovi!e (or t$eir b%rial in a &ro&er &lace s%b9ect to t$e &rovisions o( general la, reg%lating b%rial gro%n!s an! cemeteries. 6$en t$e LGC Batas =ambansa Blg. 117 &rovi!es in )ection 177 ;.< t$at a )angg%niang &anl%ngso! ma' "&rovi!e (or t$e b%rial o( t$e !ea! in s%c$ &lace an! in s%c$ manner as &rescribe! b' la, or or!inance" it sim&l' a%t$oriBes t$e cit' to &rovi!e its o,n cit' o,ne! lan! or to b%' or e4&ro&riate &rivate &ro&erties to constr%ct &%blic cemeteries. 2$is $as been t$e la, an! &ractise in t$e &ast. *t contin%es to t$e &resent. 34&ro&riation $o,ever re.%ires &a'ment o( 9%st com&ensation. 2$e .%estione! or!inance is !i((erent (rom la,s an! reg%lations re.%iring o,ners o( s%b!ivisions to set asi!e certain areas (or streets &ar+s &la'gro%n!s an! ot$er &%blic (acilities (rom t$e lan! t$e' sell to b%'ers o( s%b!ivision lots. 2$e necessities o( &%blic sa(et' $ealt$ an! convenience are ver' clear (rom sai! re.%irements ,$ic$ are inten!e! to ins%re t$e !evelo&ment o( comm%nities ,it$ sal%brio%s an! ,$olesome environments. 2$e bene(iciaries o( t$e reg%lation in t%rn are ma!e to &a' b' t$e s%b!ivision !evelo&er ,$en in!ivi!%al lots are sol! to $omeD o,ners. #s a matter o( (act t$e &etitioners rel' solel' on t$e general ,el(are cla%se or on im&lie! &o,ers o( t$e m%nici&al cor&oration not on an' e4&ress &rovision o( la, as stat%tor' basis o( t$eir e4ercise o( &o,er. 2$e cla%se $as al,a's receive! broa! an! liberal inter&retation b%t ,e cannot stretc$ it to cover t$is &artic%lar ta+ing. Moreover t$e .%estione! or!inance ,as &asse! a(ter Himla'ang =ili&ino *nc. $a! incor&orate!. receive! necessar' licenses an! &ermits an! commence! o&erating. 2$e se.%estration o( si4 &ercent o( t$e cemeter' cannot even be consi!ere! as $aving been im&lie!l' ac+no,le!ge! b' t$e &rivate res&on!ent ,$en it acce&te! t$e &ermits to commence o&erations. Cit# o! Manila v. Arellano College Facts: )ection 1 o( -e&%blic #ct No. /G7 a%t$oriBes cities an! m%nici&alities to contract loans (rom t$e -econstr%ction Finance Cor&oration t$e =$ili&&ine National Ban+ an!?or ot$er entit' or &erson at t$e rate o( interest not e4cee!ing eig$t &er cent ann%m (or t$e &%r&ose o( &%rc$asing or e4&ro&riating $omesites ,it$in t$eir res&ective territorial 9%ris!iction an! reselling t$em at cost to
G1

resi!ents o( t$e sai! cities an! m%nici&alities. 2$e co%rt belo, r%le! t$at t$is &rovision em&o,ers cities to &%rc$ase b%t not to e4&ro&riate lan!s (or t$e &%r&ose o( s%b!ivision an! resale an! so !ismisse! t$e &resent action ,$ic$ see+s to con!emn (or t$e &%r&ose 9%st state! several &arcels o( lan! $aving a combine! area o( 7 /75 s.%are meters an! sit%ate! on Legar!a )treet Cit' o( Manila. *ss%e: 6ON #ct /G7 em&o,ers cities to e4&ro&riate as ,ell as to &%rc$ase lan!s (or $omesites. :3). 2$e ,or! "e4&ro&riating " ta+en singl' or ,it$ t$e te4t is s%sce&tible o( onl' meaning. B%t t$is &o,er to e4&ro&riate is necessaril' s%b9ect to t$e limitations an! con!itions note! in t$e !ecisions above cite!. ;)ee belo,.< 2$e National Government ma' not con(er its instr%mentalities a%t$orit' ,$ic$ itsel( ma' not e4ercise. G%i!o vs. -%ral =rogress #!ministration: e4tent o( t$e =$ili&&ine GovernmentHs &o,er to con!emn &rivate &ro&ert' (or resale: *t $as been tr%l' sai! t$at t$e assertion o( t$e rig$t on t$e &art o( t$e legislat%re to ta+e t$e &ro&ert' o( one citiBen an! trans(er it to anot$er even (or a (%ll com&ensation ,$en t$e &%blic interest is not &romote! t$ereb' is claiming a !es&otic &o,er an! one inconsistent ,it$ ever' 9%st &rinci&le an! (%n!amental ma4im o( a (ree government. *n a broa! sense e4&ro&riation o( large estates tr%sts in &er&et%it' an! lan! t$at embraces a ,$ole to,n or large section o( a to,n or cit' bears !irect relation to t$e &%blic ,el(are. 2$e siBe o( t$e lan! e4&ro&riate! t$e large n%mber o( &eo&le bene(ite! an! t$e e4tent o( social an! economic re(orm sec%re! b' t$e con!emnation clot$es t$e e4&ro&riation ,it$ &%blic interest an! &%blic %se. 2$e e4&ro&riation in s%c$ cases ten!s to abolis$ economic slaver' (e%!alistic &ractices en!less con(licts bet,een lan!lor!s an! tenants an! ot$er evils inimical to comm%nit' &ros&erit' an! contentment an! &%blic &eace an! or!er. #lt$o%g$ co%rts are not in agreement as to t$e tests to a&&lie! in !etermining ,$et$er t$e %se is &%blic or not some go so (ar in t$e !irection o( a liberal constr%ction as to $ol! t$at &%blic %se is s'non'mo%s ,it$ &%blic bene(it &%blic %tilit' or &%blic a!vantage an! to a%t$oriBe t$e e4ercise o( t$e &o,er o( eminent !omain to &romote s%c$ &%blic bene(it etc. es&eciall' ,$ere t$e interest involve! are o( consi!erable magnit%!e. *n some instances sl%msites $ave been ac.%ire! b' con!emnation. 2$e $ig$est co%rt o( Ne, :or+ )tate $as r%le! t$at sl%m clearance an! erection o( $o%ses (or lo,D income (amilies ,ere &%blic &%r&ose (or ,$ic$ Ne, :or+ Cit' Ho%sing a%t$orities co%l! e4ercise t$e &o,er o( con!emnation. an! t$is !ecision ,as (ollo,e! b' similar ones in ot$er states. 2$e %n!erl'ing reasons (or t$ese !ecisions are t$at t$e !estr%ction o( congeste! areas an! %nsanitar' !,ellings !iminis$e! t$e &otentialities o( e&i!emics crime an! ,aste &revents t$e s&rea! o( crime an! !iseases to %na((ecte! areas en$ances t$e &$'sical an! moral val%e o( t$e s%rro%n!ing comm%nities an! &romote t$e sa(et' an! ,el(are o( t$e &%blic in general. 2$e con!emnation o( a small &ro&ert' in be$al( o( 15 /5 or C5 &ersons an! t$eir (amilies !oes not ins%re to t$e bene(it o( t$e &%blic to a !egree s%((icient to give t$e %se &%blic c$aracter. 2$e e4&ro&riation &rocee!ings at bar $ave been instit%te! (or t$e economic relie( o( a (e, (amilies !evoi! o( an' consi!eration o( &%blic &eace an! or!er or ot$er &%blic a!vantage. No (i4e! line o( !emarcation bet,een ,$at ta+ing is (or &%blic %se an! ,$at is not can ma!eA eac$ case $as to be 9%!ge! accor!ing to its &ec%liar circ%mstances. *t s%((ices to sa' (or t$e &%r&ose o( t$is !ecision t$at t$e case %n!er consi!eration is (ar ,anting in t$ose elements ,$ic$ ma+e (or &%blic convenience or &%blic %se. *( %&$el! t$is case ,o%l! o&en t$e gates to more o&&ressive e4&ro&riations. *( t$is e4&ro&riation be constit%tional ,e see no reason ,$' a 15D 1CD or /CD$ectare (arm lan! mig$t not be e4&ro&riate! an! s%b!ivi!e! an! sol! to t$ose ,$o ,ant to o,n a &ortion o( it. to ma+e t$e analog' closer ,e (in! no reason ,$' t$e -%ral =rogress #!ministration co%l! not ta+e b' con!emnation an %rban lot containing an! area o( 1 555 or / 555 s.%are meters (or s%b!ivision into tin' lots (or resale to its occ%&ations or t$ose ,$o ,ant to b%il! t$ereon. Kie,e! (rom anot$er angle t$e case at bar is ,ea+er (or t$e con!emnor. *n t$e (irst &lace t$e lan! t$at is t$e s%b9ect o( t$e &resent e4&ro&riation is onl' oneDt$ir! o( t$e lan! so%g$t to be ta+en in t$e G%i!o case an! abo%t t,oDt$ir!s o( t$at involve! in t$e Bor9a con!emnation &rocee!ing. *n
G/

t$e secon! &lace t$e #rellano CollegesH lan! is sit%ate! in a $ig$l' commercial section o( t$e cit' an! is occ%&ie! b' &ersons ,$o are not bona (i!e tenants. Lastl' t$is lan! ,as bro%g$t b' t$e !e(en!ant (or a %niversit' site to ta+e t$e &lace o( rente! b%il!ings t$at are %ns%itable (or sc$ools o( $ig$er learning. 2o a%t$oriBe t$e con!emnation o( an' &artic%lar lan! b' a grantee o( t$e &o,er o( eminent !omain a necessit' m%st e4ist (or t$e ta+ing t$ereo( (or t$e &ro&ose! %ses an! &%r&oses. *n Cit' o( Manila vs. Manila C$inese Comm%nit' t$is Co%rt citing #merican !ecision lai! !one t$is r%le: 2$e ver' (o%n!ation o( t$e rig$t to e4ercise eminent !omain is a gen%ine necessit' an! t$at necessit' m%st be o( a &%blic c$aracter. 2$e ascertainment o( t$e necessit' m%st &rece!e or accom&an' an! not (ollo, t$e ta+ing o( t$e lan!. ")o great is t$e regar! o( t$e la, (or &rivate &ro&ert' t$at it ,ill not a%t$oriBe t$e least violation o( it even (or t$e &%blic goo! %nless t$ere e4ist a ver' great necessit' t$ereo(." Necessit' ,it$in t$e r%le t$at t$e &artic%lar &ro&ert' to be e4&ro&riate! m%st be necessar' !oes not mean an absol%te b%t onl' a reasonable or &ractical necessit' s%c$ as ,o%l! combine t$e greatest bene(it to t$e &%blic ,it$ t$e least inconvenience an! e4&ense to t$e con!emning &art' an! &ro&ert' o,ner consistent ,it$ s%c$ bene(its. B%t meas%re! even b' t$is stan!ar! an! (orgetting (or a moment t$e &rivate c$aracter o( t$e inten!e! %se necessit' (or t$e con!emnation $as not been s$o,n. 2$e lan! in .%estion $as cost t$e o,ner =105 555. 2$e &eo&le (or ,$ose bene(it t$e con!emnation is being %n!erta+en are so &oor t$e' co%l! ill a((or! to meet t$is $ig$ &rice %nless t$e' inten! to borro, t$e mone' ,it$ a vie, to !is&osing o( t$e &ro&ert' later (or a &ro(its. C$ea&er lan!s not !e!icate! to a &%r&ose so ,ort$' as a sc$ool an! more s%ite! to t$e occ%&antsH nee!s an! means i( reall' t$e' onl' ,ant to o,n t$eir o,n $omes are &lent' else,$ere. On t$e ot$er $an! t$e !e(en!ant not onl' $as investe! a consi!erable amo%nt (or its &ro&ert' b%t $a! t$e &lans (or constr%ction rea!' an! ,o%l! $ave com&lete! t$e &ro9ect a long time ago $a! it not been sto&&e! b' t$e cit' a%t$orities. #n! again ,$ile a $an!(%l o( &eo&le stan! to &ro(its b' t$e e4&ro&riation t$e !evelo&ment o( a %niversit' t$at $as a &resent enrollment o( 8 555 st%!ents ,o%l! be sacri(ice!. #n' goo! t$at ,o%l! accr%e to t$e &%blic (rom &rovi!ing $omes to a (e, (amilies (a!es into insigni(icance in com&arison ,it$ t$e &re&aration o( a 'o%ng men an! 'o%ng ,omen (or %se(%l citiBens$i& an! (or service to t$e government an! t$e comm%nit' a tas+ ,$ic$ t$e government alone is not in a &osition to %n!erta+e. #s t$e -%ral =rogress #!ministration t$e national agenc' lan!s (or resale as $omesites an! to ,$ic$ t$e &etition to &%rc$ase t$e lan! in .%estion on be$al( o( t$e occ%&ants ,as re(erre! b' t$e =resi!ent t%rning !o,n t$e occ%&ants re.%est a(ter &ro&er investigation commente! t$at "t$e necessit' o( t$e #rellano La, College to ac.%ire a &ermanent site o( its o,n is im&erative not onl' beca%se !enial o( t$e same ,o%l! $am&er t$e ob9ectives o( t$at e!%cational instit%tion b%t it ,o%l! li+e,ise be ta+ing a &ro&ert' inten!e! alrea!' (or &%blic bene(it." 2$e Ma'or o( t$e Cit' o( Manila $imsel( con(esse! t$at $e believes t$e &lainti(( is entitle! to +ee& t$is lan!.
G1
Cit# o! Manila v. Chinese Communit# o! Manila Facts: 2$e Cit' o( Manila allege! t$at (or t$e &%r&ose o( constr%cting t$e e4tension o( -iBal #ven%e Manila it is necessar' (or it to ac.%ire o,ners$i& o( certain &arcels o( lan! sit%ate! in Binon!o some o( ,$ic$ ,ere o,ne! an! %se! b' t$e C$inese Comm%nit' o( Manila (or cemeter' &%r&oses. 2$e C$inese Comm%nit' o( Manila !enie! t$at it ,as necessar' or e4&e!ient t$at t$e sai! &arcels be e4&ro&riate! (or street &%r&osesA t$at i( t$e constr%ction o( t$e street or roa! s$o%l! be consi!ere! a &%blic necessit' ot$er ro%tes ,ere available ,$ic$ ,o%l! (%ll' satis(' t$e &lainti((Hs &%r&oses at m%c$ less e4&ense an! ,it$o%t !ist%rbing t$e resting &laces o( t$e !ea!A t$at it $a! a 2orrens title (or t$e lan!s in .%estionA t$at t$e lan!s in .%estion $a! been %se! b' t$e !e(en!ant (or cemeter' &%r&osesA t$at a great n%mber o( C$inese ,ere b%rie! in sai! cemeter'A t$at i( sai! e4&ro&riation be carrie! into e((ect it ,o%l! !ist%rb t$e resting &laces o( t$e !ea! ,o%l! re.%ire t$e e4&en!it%re o( a large s%m o( mone' in t$e trans(er or removal o( t$e bo!ies to some ot$er &lace or site an! in t$e &%rc$ase o( s%c$ ne, sites ,o%l! involve t$e !estr%ction o( e4isting mon%ments an! t$e erection o( ne, mon%ments in t$eir stea! an! ,o%l! create irre&arable loss an! in9%r' to t$e !e(en!ant an! to all t$ose &ersons o,ning an! intereste! in t$e graves an! mon%ments ,$ic$ ,o%l! $ave to be !estro'e!A t$at t$e &lainti(( ,as ,it$o%t rig$t or a%t$orit' to e4&ro&riate sai! cemeter' or an' &art or &ortion t$ereo( (or street &%r&osesA an! t$at t$e e4&ro&riation in (act ,as not necessar' as a &%blic im&rovement. 2$e t$eor' o( t$e &lainti(( is t$at once it $as establis$e! t$e (act %n!er t$e la, t$at it $as a%t$orit' to e4&ro&riate lan! it ma' e4&ro&riate an' lan! it ma' !esireA t$at t$e onl' (%nction o( t$e co%rt in s%c$ &rocee!ings is to ascertain t$e val%e o( t$e lan! in .%estionA t$at neit$er t$e co%rt nor t$e o,ners o( t$e lan! can in.%ire into t$e a!visible &%r&ose o( &%r&ose o( t$e e4&ro&riation or as+ an' .%estions concerning t$e necessities t$ere(orA t$at t$e co%rts are mere a&&raisers o( t$e lan! involve! in e4&ro&riation
G0

&rocee!ings an! ,$en t$e val%e o( t$e lan! is (i4e! b' t$e met$o! a!o&te! b' t$e la, to ren!er a 9%!gment in (avor o( t$e !e(en!ant (or its val%e. cannot a%t$oriBe t$e ta+ing o( &rivate &ro&ert' against t$e ,ill o( t$e o,ner not,it$stan!ing com&ensation ma' be re.%ire!." B%t as long as t$ere is a constit%tional or stat%tor' &rovision !en'ing t$e rig$t to ta+e lan! (or an' %se ot$er t$an a &%blic %se it occ%rs to %s t$at t$e .%estion ,$et$er an' &artic%lar %se is a &%blic one or not is %ltimatel' at least a 9%!icial .%estion. 2$e legislative ma' it is tr%e in e((ect !eclare certain %ses to be &%blic an! %n!er t$e o&eration o( t$e ,ellD+no,n r%le t$at a stat%te ,ill not be !eclare! to be %nconstit%tional e4ce&t in a case (ree or com&arativel' (ree (rom !o%bt t$e co%rts ,ill certainl' s%stain t$e action o( t$e legislat%re %nless it a&&ears t$at t$e &artic%lar %se is clearl' not o( a &%blic nat%re. #rticle 108 o( t$e Civil Co!e &rovi!es t$at: "No one ma' be !e&rive! o( $is &ro&ert' %nless it be b' com&etent a%t$orit' (or some &%r&ose o( &roven &%blic %tilit' an! a(ter &a'ment o( t$e &ro&er com&ensation. @nless t$is re.%isite ;&roven &%blic %tilit' an! &a'ment< $as been com&lie! ,it$ it s$all be t$e !%t' o( t$e co%rts to &rotect t$e o,ner o( s%c$ &ro&ert' in its &ossession or to restore its &ossession to $im as t$e case ma' be." 2$e ver' (o%n!ation o( t$e rig$t to e4ercise eminent !omain is a gen%ine necessit' an! t$at necessit' m%st be o( a &%blic c$aracter. 2$e ascertainment o( t$e necessit' m%st &rece!e or accom&an' an! not (ollo, t$e ta+ing o( t$e lan!. 2$e necessit' (or con(erring t$e a%t$orit' %&on a m%nici&al cor&oration to e4ercise t$e rig$t o( eminent !omain is a!mitte!l' ,it$in t$e &o,er o( t$e legislat%re. B%t ,$et$er or not t$e m%nici&al cor&oration or entit' is e4ercising t$e rig$t in a &artic%lar case %n!er t$e con!itions im&ose! b' t$e general a%t$orit' is a .%estion ,$ic$ t$e co%rts $ave t$e rig$t to in.%ire into. 2$e Cit' o( Manila can onl' e4&ro&riate &rivate &ro&ert'. *t is a ,ell +no,n (act t$at cemeteries ma' be &%blic or &rivate. 2$e (ormer is a cemeter' %se! b' t$e general comm%nit' or neig$bor$oo! or c$%rc$ ,$ile t$e latter is %se! onl' b' a (amil' or a small &ortion o( t$e comm%nit' or neig$bor$oo!. 6$ere a cemeter' is o&en to &%blic it is a &%blic %se an! no &art o( t$e gro%n! can be ta+en (or ot$er &%blic %ses %n!er a general a%t$orit'. 2$e cemeter' in
*ss%e: 6ON t$e co%rts ma' in.%ire into an! $ear &roo( %&on t$e necessit' o( t$e e4&ro&riationT :3). *t cannot be !enie! i( t$e legislat%re %n!er &ro&er a%t$orit' s$o%l! grant t$e e4&ro&riation o( a certain or &artic%lar &arcel o( lan! (or some s&eci(ie! &%blic &%r&ose t$at t$e co%rts ,o%l! be ,it$o%t 9%ris!iction to in.%ire into t$e &%r&ose o( t$at legislation. *( %&on t$e ot$er $an! $o,ever t$e legislat%re s$o%l! grant general a%t$orit' to a m%nici&al cor&oration to e4&ro&riate &rivate lan! (or &%blic &%r&oses t$e co%rts $ave am&le a%t$orit' in t$is 9%ris!iction %n!er t$e &rovisions above .%ote! to ma+e in.%ir' an! to $ear &roo( %&on an iss%e &ro&erl' &resente! concerning ,$et$er or not t$e lan!s ,ere &rivate an! ,$et$er t$e &%r&ose ,as in (act &%blic. 2$e rig$t o( e4&ro&riation is not an in$erent &o,er in a m%nici&al cor&oration an! be(ore it can e4ercise t$e rig$t some la, m%st e4ist con(erring t$e &o,er %&on it. 6$en t$e co%rts come to !etermine t$e .%estion t$e' m%st not onl' (in! ;a< t$at a la, or a%t$orit' e4ists (or t$e e4ercise o( t$e rig$t o( eminent !omain b%t ;b< also t$at t$e rig$t or a%t$orit' is being e4ercise! in accor!ance ,it$ t$e la,. *n t$e &resent case t$ere are t,o con!itions im&ose! %&on t$e a%t$orit' conce!e! to t$e Cit' o( Manila : First t$e lan! m%st be &rivateA an! secon! t$e &%r&ose m%st be &%blic. 2$e legislative !e&artment o( t$e government ,as rarel' %n!erta+es to !esignate t$e &recise &ro&ert' ,$ic$ s$o%l! be ta+en (or &%blic %se. *t $as generall' li+e in t$e &resent case merel' con(erre! general a%t$orit' to ta+e lan! (or &%blic %se ,$en a necessit' e4ists t$ere(or. 6e believe t$at it can be con(i!entl' asserte! t$at %n!er s%c$ stat%te t$e allegation o( t$e necessit' (or t$e a&&ro&riation is an iss%able allegation ,$ic$ it is com&etent (or t$e co%rts to !eci!e. "*t is erroneo%s to s%&&ose t$at t$e legislat%re is be'on! t$e control o( t$e co%rts in e4ercising t$e &o,er o( eminent !omain eit$er as to t$e nat%re o( t$e %se or t$e necessit' to t$e %se o( an' &artic%lar &ro&ert'. For i( t$e %se be not &%blic or no necessit' (or t$e ta+ing e4ists t$e legislat%re
GC

.%estion seems to $ave been establis$e! %n!er governmental a%t$orit' b' t$e )&anis$ GovernorDGeneral. 2$e cemeter' in .%estion ma' be %se! b' t$e general comm%nit' o( C$inese ,$ic$ (act in t$e general acce&tation o( t$e !e(inition o( a &%blic cemeter' ,o%l! ma+e t$e cemeter' in .%estion &%blic &ro&ert'. *( t$at is tr%e t$en o( co%rse t$e &etition o( t$e &lainti(( m%st be !enie! (or t$e reason t$at t$e cit' o( Manila $as no a%t$orit' or rig$t %n!er t$e la, to e4&ro&riate &%blic &ro&ert'. 3ven granting t$at a necessit' e4ists (or t$e o&ening o( t$e street in .%estion t$e recor! contains no &roo( o( t$e necessit' o( o&ening t$e same t$ro%g$ t$e cemeter'. 2$e recor! s$o,s t$at a!9oining an! a!9acent lan!s $ave been o((ere! to t$e cit' (ree o( c$arge ,$ic$ ,ill ans,er ever' &%r&ose o( t$e &lainti((. Camarines (ur v. CA /supra- see p. =01 Municipalit# o! Parana>ue v. $.M. Realt# Corporation Facts: =%rs%ant to )angg%niang Ba'an -esol%tion No. 81D8C )eries o( 1881 t$e M%nici&alit' o( =araRa.%e (ile! a Com&laint (or e4&ro&riation against K.M. -ealt' Cor&oration over t,o &arcels o( lan!. #llege!l' t$e com&laint ,as (ile! "(or t$e &%r&ose o( alleviating t$e living con!itions o( t$e %n!er&rivilege! b' &rovi!ing $omes (or t$e $omeless t$ro%g$ a socialiBe! $o%sing &ro9ect." =arent$eticall' it ,as also (or t$is state! &%r&ose t$at &etitioner &%rs%ant to its )angg%niang Ba'an -esol%tion No. C77 )eries o( 1881 &revio%sl' ma!e an o((er to enter into a negotiate! sale o( t$e &ro&ert' ,it$ &rivate res&on!ent ,$ic$ t$e latter !i! not acce&t. -2C: gave !%e co%rse to &etition an! a%t$oriBe! &etitioner to ta+e &ossession o( t$e s%b9ect &ro&ert' %&on !e&osit ,it$ its cler+ o( co%rt o( an amo%nt e.%ivalent to 1C &ercent o( its (air mar+et val%e base! on its c%rrent ta4 !eclaration. KM allege! t$at ;a< t$e com&laint (aile! to state a ca%se o( action beca%se it ,as (ile! &%rs%ant to a resol%tion an! not to an or!inance as re.%ire! b' t$e LGC an! ;b< t$e ca%se o( action i( an' ,as barre! b' a &rior 9%!gment or res 9%!icata. Case !ismisse! M- !enie!. C#: a((irme!. *ss%es: 1. 6ON a resol%tion !%l' a&&rove! b' t$e m%nici&al co%ncil $as t$e same (orce an! e((ect o( an or!inance. NO =.%e: a resol%tion a&&rove! b' t$e m%nici&al co%ncil (or t$e &%r&ose o( initiating an e4&ro&riation case "s%bstantiall' com&lies ,it$ t$e re.%irements o( t$e la," beca%se t$e terms "or!inance" an! "resol%tion" are s'non'mo%s (or "t$e &%r&ose o( besto,ing a%t$orit' UonV t$e LG@ t$ro%g$ its c$ie( e4ec%tive to initiate t$e e4&ro&riation &rocee!ings in co%rt in t$e e4ercise o( t$e &o,er o( eminent !omain." #rticle 1G -%le K* o( t$e -%les an! -eg%lations *m&lementing t$e LGC: "*( t$e LG@ (ails to ac.%ire a &rivate &ro&ert' (or &%blic %se &%r&ose or ,el(are t$ro%g$ &%rc$ase t$e LG@ ma' e4&ro&riate sai! &ro&ert' t$ro%g$ a resol%tion o( t$e )angg%nian a%t$oriBing its c$ie( e4ec%tive to initiate e4&ro&riation &rocee!ings." 2$e Co%rt !isagrees. 2$e &o,er o( eminent !omain is lo!ge! in t$e legislative branc$ o( government ,$ic$ ma' !elegate t$e e4ercise t$ereo( to LG@s ot$er &%blic entities an! &%blic %tilities. #n LG@ ma' t$ere(ore e4ercise t$e &o,er to e4&ro&riate &rivate &ro&ert' onl' ,$en a%t$oriBe! b' Congress an! s%b9ect to t$e latterHs control an! restraints im&ose! "t$ro%g$ t$e la, con(erring t$e &o,er or in ot$er legislations." *n t$is case )ection 18 o( -# 71G5 ,$ic$ !elegates to LG@s t$e &o,er o( eminent !omain also la's !o,n t$e &arameters (or its e4ercise. *t &rovi!es as (ollo,s: )ec. 18. 3minent Domain. # LG@ ma' t$ro%g$ its c$ie( e4ec%tive an! acting &%rs%ant to an or!inance e4ercise t$e &o,er o( eminent !omain (or &%blic %se or &%r&ose or ,el(are (or t$e bene(it o( t$e &oor an! t$e lan!less %&on &a'ment o( 9%st com&ensation &%rs%ant to t$e &rovisions o( t$e Constit%tion an! &ertinent la,s: =rovi!e! $o,ever 2$at t$e &o,er o( eminent !omain ma' not be e4ercise! %nless a vali! an! !e(inite o((er $as been &revio%sl' ma!e to t$e o,ner an! s%c$ o((er ,as not acce&te!: =rovi!e! (%rt$er 2$at t$e LG@ ma' imme!iatel' ta+e &ossession o( t$e &ro&ert' %&on t$e (iling o( t$e e4&ro&riation &rocee!ings an! %&on ma+ing a !e&osit ,it$ t$e &ro&er co%rt o( at least (i(teen &ercent ;1CY< o( t$e (air mar+et val%e o( t$e &ro&ert' base! on t$e c%rrent ta4 !eclaration o( t$e &ro&ert' to be e4&ro&riate!: =rovi!e! (inall' 2$at t$e amo%nt to be &ai! (or t$e e4&ro&riate! &ro&ert' s$all be !etermine! b' t$e &ro&er co%rt base! on
GG

t$e (air mar+et val%e at t$e time o( t$e ta+ing o( t$e &ro&ert'. 3ssential re.%isites (or t$e e4ercise t$e &o,er o( eminent !omain: ;1< #n or!inance is enacte! b' t$e local legislative co%ncil a%t$oriBing t$e local c$ie( e4ec%tive in be$al( o( t$e LG@ to e4ercise t$e &o,er o( eminent !omain or &%rs%e e4&ro&riation &rocee!ings over a &artic%lar &rivate &ro&ert'. ;/< 2$e &o,er o( eminent !omain is e4ercise! (or &%blic %se &%r&ose or ,el(are or (or t$e bene(it o( t$e &oor an! t$e lan!less. ;1< 2$ere is &a'ment o( 9%st com&ensation as re.%ire! %n!er )ection 8 #rticle *** o( t$e Constit%tion an! ot$er &ertinent la,s. ;0< # vali! an! !e(inite o((er $as been &revio%sl' ma!e to t$e o,ner o( t$e &ro&ert' so%g$t to be e4&ro&riate! b%t sai! o((er ,as not acce&te!. *n t$e case at bar t$e local c$ie( e4ec%tive so%g$t to e4ercise t$e &o,er o( eminent !omain &%rs%ant to a resol%tion o( t$e m%nici&al co%ncil. 2$%s t$ere ,as no com&liance ,it$ t$e (irst re.%isite t$at t$e ma'or be a%t$oriBe! t$ro%g$ an or!inance. =.%e cites Camarines )%r vs. C# to s$o, t$at a resol%tion ma' s%((ice to s%&&ort t$e e4ercise o( eminent !omain b' an LG@. 2$is case $o,ever is not in &oint beca%se t$e a&&licable la, at t$at time ,as B= 117 t$e &revio%s LGC ,$ic$ $a! &rovi!e! t$at a mere resol%tion ,o%l! enable an LG@ to e4ercise eminent !omain. *n contrast -# 71G5 11 t$e &resent LGC ,$ic$ ,as alrea!' in (orce ,$en t$e Com&laint (or e4&ro&riation ,as (ile! e4&licitl' re.%ire! an or!inance (or t$is &%r&ose. # m%nici&al or!inance is !i((erent (rom a resol%tion. #n or!inance is a la, b%t a resol%tion is merel' a !eclaration o( t$e sentiment or o&inion o( a la,ma+ing bo!' on a s&eci(ic matter. #n or!inance &ossesses a general an! &ermanent c$aracter b%t a resol%tion is tem&orar' in nat%re. #!!itionall' t$e t,o are enacte! !i((erentl' S a t$ir! rea!ing is necessar' (or an or!inance b%t not (or a resol%tion %nless !eci!e! ot$er,ise b' a ma9orit' o( all t$e )angg%nian members. *( Congress inten!e! to allo, LG@s to e4ercise eminent !omain t$ro%g$ a mere resol%tion it ,o%l! $ave sim&l' a!o&te! t$e lang%age o( t$e &revio%s LGC. B%t Congress !i! not. *n a clear !ivergence (rom t$e &revio%s LGC )ection 18 o( -# 71G5 categoricall' re.%ires t$at t$e local c$ie( e4ec%tive act &%rs%ant to an or!inance. *n!ee! "UlVegislative intent is !etermine! &rinci&all' (rom t$e lang%age o( a stat%te. 6$ere t$e lang%age o( a stat%te is clear an! %nambig%o%s t$e la, is a&&lie! accor!ing to its e4&ress terms an! inter&retation ,o%l! be resorte! to onl' ,$ere a literal inter&retation ,o%l! be resorte! to onl' ,$ere a literal inter&retation ,o%l! be eit$er im&ossible or abs%r! or ,o%l! lea! to an in9%stice." *n t$e instant case t$ere is no reason to !e&art (rom t$is r%le since t$e la, re.%iring an or!inance is not at all im&ossible abs%r! or %n9%st. Moreover t$e &o,er o( eminent !omain necessaril' involves a !erogation o( a (%n!amental or &rivate rig$t o( t$e &eo&le. #ccor!ingl' t$e mani(est c$ange in t$e legislative lang%age S (rom "resol%tion" %n!er B= 117 to "or!inance" %n!er -# 71G5 S !eman!s a strict constr%ction. "No s&ecies o( &ro&ert' is $el! b' in!ivi!%als ,it$ greater tenacit' an! is g%ar!e! b' t$e Constit%tion an! la,s more se!%lo%sl' t$an t$e rig$t to t$e (ree$ol! o( in$abitants. 6$en t$e legislat%re inter(eres ,it$ t$at rig$t an! (or greater &%blic &%r&oses a&&ro&riates t$e lan! o( an in!ivi!%al ,it$o%t $is consent t$e &lain meaning o( t$e la, s$o%l! not be enlarge! b' !o%bt(%l inter&retation." =.%e relies on #rticle 1G -%le K* o( t$e *m&lementing -%les ,$ic$ re.%ires onl' a resol%tion to a%t$oriBe an LG@ to e4ercise eminent !omain. 2$is is clearl' mis&lace! beca%se )ection 18 o( -# 71G5 t$e la, itsel( s%rel' &revails over sai! r%le ,$ic$ merel' see+s to im&lement it. *t is a4iomatic t$at t$e clear letter o( t$e la, is controlling an! cannot be amen!e! b' a mere a!ministrative r%le iss%e! (or its im&lementation. Besi!es ,$at t$e !iscre&anc' seems to in!icate is a mere oversig$t in t$e ,or!ing o( t$e im&lementing r%les since #rticle 1/ -%le K* t$ereo( also re.%ires t$at in e4ercising t$e &o,er o( eminent !omain t$e c$ie( e4ec%tive o( t$e LG@ act &%rs%ant to an or!inance. *n t$is r%ling t$e Co%rt !oes not !iminis$ t$e &olic' embo!ie! in )ection / #rticle J o( t$e Constit%tion ,$ic$ &rovi!es t$at "territorial an! &olitical s%b!ivisions s$all en9o' local a%tonom'." *t merel' %&$ol!s t$e la, as ,or!e! in -# 71G5. 6e stress t$at an LG@ is create! b' la, an! all its &o,ers an! rig$ts are so%rce! t$ere(rom. *t $as t$ere(ore no &o,er to amen! or act be'on! t$e a%t$orit' given an! t$e limitations im&ose! on it b' la,. )trictl' s&ea+ing t$e
G7

&o,er o( eminent !omain !elegate! to an LG@ is in realit' not eminent b%t "in(erior" !omain since it m%st con(orm to t$e limits im&ose! b' t$e !elegation an! t$%s &arta+es onl' o( a s$are in eminent !omain. 18 *n!ee! "t$e national legislat%re is still t$e &rinci&al o( t$e LG@s ,$ic$ cannot !e(' its ,ill or mo!i(' or violate it." 6ON t$e com&laint states a ca%se o( action. NO. *n its Brie( (ile! be(ore -es&on!ent Co%rt &etitioner arg%es t$at its )angg%niang Ba'an &asse! an or!inance on October 11 1880 ,$ic$ reiterate! its -esol%tion No. 81D1C )eries o( 1881 an! rati(ie! all t$e acts o( its ma'or regar!ing t$e s%b9ect e4&ro&riation. 2$is arg%ment is bere(t o( merit. *n t$e (irst &lace &etitioner merel' allege! t$e e4istence o( s%c$ an or!inance b%t it !i! not &resent an' certi(ie! tr%e co&' t$ereo(. *n t$e secon! &lace &etitioner !i! not raise t$is &oint be(ore t$is Co%rt. *n (act it ,as mentione! b' &rivate res&on!ent an! onl' in &assing. *n an' event t$is allegation !oes not c%re t$e in$erent !e(ect o( &etitionerHs Com&laint (or e4&ro&riation (ile! on )e&tember /1 1881. *t is $ornboo+ !octrine t$at in a motion to !ismiss base! on t$e gro%n! t$at t$e com&laint (ails to state a ca%se o( action t$e .%estion s%bmitte! be(ore t$e co%rt (or !etermination is t$e s%((icienc' o( t$e allegations in t$e com&laint itsel(. 6$et$er t$ose allegations are tr%e or not is besi!e t$e &oint (or t$eir tr%t$ is $'&ot$eticall' a!mitte! b' t$e motion. 2$e iss%e rat$er is: a!mitting t$em to be tr%e ma' t$e co%rt ren!er a vali! 9%!gment in accor!ance ,it$ t$e &ra'er o( t$e com&laintT 2$e (act t$at t$ere is no ca%se o( action is evi!ent (rom t$e (ace o( t$e Com&laint (or e4&ro&riation ,$ic$ ,as base! on a mere resol%tion. 2$e absence o( an or!inance a%t$oriBing t$e same is e.%ivalent to lac+ o( ca%se o( action. Conse.%entl' t$e Co%rt o( #&&eals committe! no reversible error in a((irming t$e trial co%rtHs Decision ,$ic$ !ismisse! t$e e4&ro&riation s%it. 6ON t$e &rinci&le o( res 9%!icata as a gro%n! (or !ismissal o( case is not a&&licable ,$en &%blic interest is &rimaril' involve!. :3). 3minent Domain Not Barre! b' -es 7%!icata. #s correctl' (o%n! b' t$e Co%rt o( #&&eals an! t$e trial co%rt all t$e re.%isites (or t$e a&&lication o( res 9%!icata are &resent in t$is case. 2$ere is a &revio%s (inal 9%!gment on t$e merits in a &rior e4&ro&riation case involving i!entical interests s%b9ect matter an! ca%se o( action ,$ic$ $as been ren!ere! b' a co%rt $aving 9%ris!iction over it. Ho,ever -7 ,$ic$ (in!s a&&lication in generall' all cases an! &rocee!ings cannot bar t$e rig$t o( t$e )tate or its agent to e4&ro&riate &rivate &ro&ert'. 2$e ver' nat%re o( eminent !omain as an in$erent &o,er o( t$e )tate !ictates t$at t$e rig$t to e4ercise t$e &o,er be absol%te an! %n(ettere! even b' a &rior 9%!gment or res 9%!icata. 2$e sco&e o( eminent !omain is &lenar' an! li+e &olice &o,er can "reac$ ever' (orm o( &ro&ert' ,$ic$ t$e )tate mig$t nee! (or &%blic %se." "#ll se&arate interests o( in!ivi!%als in &ro&ert' are $el! o( t$e government %n!er t$is tacit agreement or im&lie! reservation. Not,it$stan!ing t$e grant to in!ivi!%als t$e eminent !omain t$e $ig$est an! most e4act i!ea o( &ro&ert' remains in t$e government or in t$e aggregate bo!' o( t$e &eo&le in t$eir sovereign ca&acit'A an! t$e' $ave t$e rig$t to res%me t$e &ossession o( t$e &ro&ert' ,$enever t$e &%blic interest re.%ires it." 2$%s t$e )tate or its a%t$oriBe! agent cannot be (orever barre! (rom e4ercising sai! rig$t b' reason alone o( &revio%s nonDcom&liance ,it$ an' legal re.%irement. 6$ile t$e &rinci&le o( res 9%!icata !oes not !enigrate t$e rig$t o( t$e )tate to e4ercise eminent !omain it !oes a&&l' to s&eci(ic iss%es !eci!e! in a &revio%s case. For e4am&le a (inal 9%!gment !ismissing an e4&ro&riation s%it on t$e gro%n! t$at t$ere ,as no &rior o((er &recl%!es anot$er s%it raising t$e same iss%eA it cannot $o,ever bar t$e )tate or its agent (rom t$erea(ter com&l'ing ,it$ t$is re.%irement as &rescribe! b' la, an! s%bse.%entl' e4ercising its &o,er o( eminent !omain over t$e same &ro&ert'. B' t$e same to+en o%r r%ling t$at &etitioner cannot e4ercise its !elegate! &o,er o( eminent !omain t$ro%g$ a mere resol%tion ,ill not bar it (rom reinstit%ting similar &rocee!ings once t$e sai! legal re.%irement an! (or t$at matter all ot$ers are &ro&erl' com&lie! ,it$. =arent$eticall' an! b' &arit' o( reasoning t$e same is also tr%e o( t$e &rinci&le o( "la, o( t$e case." *n -e&%blic vs. De Mnec$t t$e Co%rt r%le! t$at t$e &o,er o( t$e )tate or its agent to e4ercise eminent !omain is not !iminis$e! b' t$e mere (act t$at a &rior (inal 9%!gment over t$e &ro&ert' to be e4&ro&riate! $as become t$e la, o( t$e case as to t$e
/.
/.
G8

&arties. 2$e )tate or its a%t$oriBe! agent ma' still s%bse.%entl' e4ercise its rig$t to e4&ro&riate t$e same &ro&ert' once all legal re.%irements are com&lie! ,it$. 2o r%le ot$er,ise ,ill not onl' im&ro&erl' !iminis$ t$e &o,er o( eminent !omain b%t also clearl' !e(eat social 9%stice. Cit# o! Cebu v. (pouses *e amo Facts: 2$e Cit' o( Ceb% (ile! in Civil Case No. C3BD10G1/ a com&laint (or eminent !omain against res&on!ents s&o%ses #&olonio an! Blasa De!amo (or a &%blic &%r&ose i.e. (or t$e constr%ction o( a &%blic roa! ,$ic$ s$all serve as an access?relie( roa! o( Goror!o #ven%e to e4ten! to t$e General Ma4il%m #ven%e an! t$e bac+ o( Magellan *nternational Hotel -oa!s in Ceb% Cit'. 2$e lots are t$e most s%itable site (or t$e &%r&ose. 2$e total area so%g$t to be e4&ro&riate! is 1 G/0 s.%are meters ,it$ an assesse! val%e o( =1 78G.055. =etitioner !e&osite! ,it$ t$e =$ili&&ine National Ban+ t$e amo%nt o( =C1 1CG re&resenting 1CY o( t$e (air mar+et val%e o( t$e &ro&ert' to enable t$e &etitioner to ta+e imme!iate &ossession o( t$e &ro&ert' &%rs%ant to )ection 18 o( -.#. No. 71G5. 2$e De!amos (ile! a motion to !ismiss t$e com&laint beca%se t$e &%r&ose (or ,$ic$ t$eir &ro&ert' ,as to be e4&ro&riate! ,as not (or a &%blic &%r&ose b%t (or bene(it o( a single &rivate entit' t$e Ceb% Hol!ings *nc. Ceb% co%l! sim&l' b%' !irectl' (rom t$em t$e &ro&ert' at its (air mar+et val%e i( it ,ante! to 9%st li+e ,$at it !i! ,it$ t$e neig$boring lots. Besi!es t$e &rice o((ere! ,as ver' lo, in lig$t o( t$e consi!eration o( =/5 555 &er s.%are meter more or less ,$ic$ &etitioner &ai! to t$e neig$boring lots. Finall' t$e De!amos allege! t$at t$e' $ave no ot$er lan! in Ceb% Cit'. Ceb% (ile! a motion (or t$e iss%ance o( a ,rit o( &ossession &%rs%ant to )ection 18 o( -.#. No. 71G5. 2$e motion ,as grante! b' t$e trial co%rt. 2$e &arties e4ec%te! an! s%bmitte! to t$e trial co%rt an #greement ,$erein t$e' !eclare! t$at t$e' $ave &artiall' settle! t$e case an! in consi!eration t$ereo( t$e' agree!: 1. 2$at t$e )3COND =#-2: $ereb' con(orms to t$e intention to UsicV t$e F*-)2 =#-2: in e4&ro&riating t$eir &arcels o( lan! in t$e aboveDcite! case as (or &%blic &%r&ose an! (or t$e bene(it o( t$e general &%blicA /. 2$at t$e )3COND =#-2: agrees to &art ,it$ t$e o,ners$i& o( t$e s%b9ect &arcels o( lan! in (avor o( t$e F*-)2 =#-2: &rovi!e! t$e latter ,ill &a' 9%st com&ensation (or t$e same in t$e amo%nt !etermine! b' t$e co%rt a(ter !%e notice an! $earingA 1. 2$at in t$e meantime t$e )3COND =#-2: agrees to receive t$e amo%nt o( ON3 M*LL*ON )3K3N H@ND-3D 3*GH2: )*J 2HO@)#ND FO@- H@ND-3D =3)O) ;1 78G 055.55< as &rovisional &a'ment (or t$e s%b9ect &arcels o( lan! ,it$o%t &re9%!ice to t$e (inal val%ation as ma'be !etermine! b' t$e co%rtA 0. 2$at t$e F*-)2 =#-2: in t$e lig$t o( t$e iss%ance o( t$e 6rit o( =ossession Or!er !ate! )e&tember /1 1880 iss%e! b' t$e Honorable Co%rt agree! to ta+e &ossession over t$at &ortion o( t$e lot so%g$t to be e4&ro&riate! ,$ere t$e $o%se o( t$e )3COND =#-2: ,as locate! onl' a(ter (i(teen ;1C< !a's %&on t$e recei&t o( t$e )3COND =#-2: o( t$e amo%nt o( =1 78G 055.55A C. 2$at t$e )3COND =#-2: %&on recei&t o( t$e a(oresai! &rovisional amo%nt s$all t%rn over to t$e F*-)2 =#-2: t$e title o( t$e lot an! ,it$in t$e la&se o( t$e (i(teen ;1C< !a's grace &erio! ,ill vol%ntaril' !emolis$ t$eir $o%se an! t$e ot$er str%ct%re t$at ma' be locate! t$ereon at t$eir o,n e4&enseA G. 2$at t$e F*-)2 =#-2: an! t$e )3COND =#-2: 9ointl' &etition t$e Honorable Co%rt to ren!er 9%!gment in sai! Civil Case No. C3BD10G1/ in accor!ance ,it$ t$is #G-33M3N2A 7. 2$at t$e 9%!gment so%g$t to be ren!ere! %n!er t$is agreement s$all be (ollo,e! b' a s%&&lemental 9%!gment (i4ing t$e 9%st com&ensation (or t$e &ro&ert' o( t$e )3COND =#-2: a(ter t$e Commissioners a&&ointe! b' t$is Honorable Co%rt to !etermine t$e same s$all $ave ren!ere! t$eir re&ort an! a&&rove! b' t$e co%rt. =%rs%ant to sai! agreement t$e trial co%rt a&&ointe! t$ree commissioners to !etermine t$e 9%st com&ensation o( t$e lots so%g$t to be e4&ro&riate!. 2$e commissioners ,ere =alermo M. L%go ,$o ,as nominate! b' &etitioner an! ,$o ,as !esignate! as C$airmanA #l(re!o Cisneros ,$o ,as nominate! b' res&on!entsA an! Herbert 3. B%ot ,$o ,as !esignate! b' t$e trial co%rt. 2$e &arties agree! to t$eir a&&ointment. 2$erea(ter t$e commissioners s%bmitte! t$eir re&ort ,$ic$ containe! t$eir res&ective assessments o( an! recommen!ation as to t$e val%ation o( t$e &ro&ert'. On t$e basis o( t$e commissionersH re&ort an! a(ter !%e !eliberation t$ereon t$e trial co%rt ren!ere! its !ecision or!ering Ceb% to &a' t$e De!amos =/0 8GC.815.55 re&resenting t$e com&ensation mentione! in t$e Com&laint. =etitioner (ile! a motion (or reconsi!eration on t$e gro%n! t$at t$e commissionersH re&ort ,as inacc%rate since it incl%!e! an area ,$ic$ ,as not s%b9ect to e4&ro&riation. More s&eci(icall' it conten!e! t$at Lot No. 1C/8 contains 781 s.%are meters b%t t$e act%al area to be e4&ro&riate!
G8

is onl' 078 s.%are meters. 2$e remaining 11C s.%are meters is t$e s%b9ect o( a se&arate e4&ro&riation &rocee!ing in Civil Case No. C3BD8108 t$en &en!ing be(ore Branc$ 8 o( t$e -egional 2rial Co%rt o( Ceb% Cit'. 2$e commissioners s%bmitte! an amen!e! assessment (or t$e 078 s.%are meters o( Lot No. 1C/8 an! (i4e! it at =1/ 8/0.15 &er s.%are meter or in t$e amo%nt o( =/5 8/G 118.C5. 2$e assessment ,as a&&rove! as t$e 9%st com&ensation t$ereo( b' t$e trial co%rt in its Or!er o( /7 December 188G. #ccor!ingl' t$e !is&ositive &ortion o( t$e !ecision ,as amen!e! to re(lect t$e ne, val%ation. =etitioner elevate! t$e case to t$e Co%rt o( #&&eals ,$ic$ !oc+ete! t$e case as C#DG.-. CK No. C8/50. =etitioner allege! t$at t$e lo,er co%rt erre! in (i4ing t$e amo%nt o( 9%st com&ensation at =/5 8/G 118.C5. 2$e 9%st com&ensation s$o%l! be base! on t$e &revailing mar+et &rice o( t$e &ro&ert' at t$e commencement o( t$e e4&ro&riation &rocee!ings. C# #((irme! -2C. *ss%e: 6ON 9%st com&ensation s$o%l! be !etermine! as o( t$e !ate o( t$e (iling o( t$e com&laint. *t asserts t$at it s$o%l! be ,$ic$ in t$is case s$o%l! be 17 )e&tember 1881 an! not at t$e time t$e &ro&ert' ,as act%all' ta+en in 1880 &%rs%ant to t$e !ecision in N=C vs. C# De!amos: Co%rt o( #&&eals !i! not err in a((irming t$e !ecision o( t$e trial co%rt beca%se ;1< t$e trial co%rt !eci!e! t$e case on t$e basis o( t$e agreement o( t$e &arties t$at 9%st com&ensation s$all be (i4e! b' commissioners a&&ointe! b' t$e co%rtA ;/< &etitioner !i! not inter&ose an' serio%s ob9ection to t$e commissionersH re&ort o( 1/ #%g%st 188G (i4ing t$e 9%st com&ensation o( t$e 1 G/0Ds.%are meter lot at =/5 8/G 118.C5A $ence it ,as esto&&e! (rom attac+ing t$e re&ort on ,$ic$ t$e !ecision ,as base!A an! ;1< t$e !etermine! 9%st com&ensation (i4e! is even lo,er t$an t$e act%al val%e o( t$e &ro&ert' at t$e time o( t$e act%al ta+ing in 1880. 3minent !omain is a (%n!amental )tate &o,er t$at is inse&arable (rom sovereignt'. *t is t$e GovernmentHs rig$t to a&&ro&riate in t$e nat%re o( a com&%lsor' sale to t$e )tate &rivate &ro&ert' (or &%blic %se or &%r&ose.8 Ho,ever t$e Government m%st &a' t$e o,ner t$ereo( 9%st com&ensation as consi!eration t$ere(or. *n t$e case at bar t$e a&&licable la, as to t$e &oint o( rec+oning (or t$e !etermination o( 9%st com&ensation is )ection 18 o( -.#. No. 71G5 ,$ic$ e4&ressl' &rovi!es t$at 9%st com&ensation s$all be !etermine! as o( t$e time o( act%al ta+ing. 2$e )ection rea!s as (ollo,s: )3C2*ON 18. 3minent Domain. X # local government %nit ma' t$ro%g$ its c$ie( e4ec%tive an! acting &%rs%ant to an or!inance e4ercise t$e &o,er o( eminent !omain (or &%blic %se or &%r&ose or ,el(are (or t$e bene(it o( t$e &oor an! t$e lan!less %&on &a'ment o( 9%st com&ensation &%rs%ant to t$e &rovisions o( t$e Constit%tion an! &ertinent la,s: =rovi!e! $o,ever 2$at t$e &o,er o( eminent !omain ma' not be e4ercise! %nless a vali! an! !e(inite o((er $as been &revio%sl' ma!e to t$e o,ner an! s%c$ o((er ,as not acce&te!: =rovi!e! (%rt$er 2$at t$e local government %nit ma' imme!iatel' ta+e &ossession o( t$e &ro&ert' %&on t$e (iling o( t$e e4&ro&riation &rocee!ings an! %&on ma+ing a !e&osit ,it$ t$e &ro&er co%rt o( at least (i(teen &ercent ;1CY< o( t$e (air mar+et val%e o( t$e &ro&ert' base! on t$e c%rrent ta4 !eclaration o( t$e &ro&ert' to be e4&ro&riate!: =rovi!e! (inall' 2$at t$e amo%nt to be &ai! (or t$e e4&ro&riate! &ro&ert' s$all be !etermine! b' t$e &ro&er co%rt base! on t$e (air mar+et val%e at t$e time o( t$e ta+ing o( t$e &ro&ert'. N=C -%ling misrea!O 6e !i! not categoricall' r%le in t$at case t$at 9%st com&ensation s$o%l! be !etermine! as o( t$e (iling o( t$e com&laint. 6e e4&licitl' state! t$erein t$at alt$o%g$ t$e general r%le in !etermining 9%st com&ensation in eminent !omain is t$e val%e o( t$e &ro&ert' as o( t$e !ate o( t$e (iling o( t$e com&laint t$e r%le "a!mits o( an e4ce&tion: ,$ere t$is Co%rt (i4e! t$e val%e o( t$e &ro&ert' as o( t$e !ate it ,as ta+en an! not at t$e !ate o( t$e commencement o( t$e e4&ro&riation &rocee!ings." #lso t$e trial co%rt (ollo,e! t$e t$en governing &roce!%ral la, on t$e matter ,$ic$ ,as )ection C o( -%le G7 o( t$e -%les o( Co%rt ,$ic$ &rovi!e! as (ollo,s: )3C. C. #scertainment o( com&ensation. X @&on t$e entr' o( t$e or!er o( con!emnation t$e co%rt s$all a&&oint not more t$an t$ree ;1< com&etent an! !isintereste! &ersons as commissioners to ascertain an! re&ort to t$e co%rt t$e 9%st com&ensation (or t$e &ro&ert' so%g$t to be ta+en. 2$e or!er o( a&&ointment s$all !esignate t$e time an! &lace o( t$e (irst session o( t$e $earing to be $el! b' t$e commissioners an! s&eci(' t$e time ,it$in ,$ic$ t$eir re&ort is to be (ile! ,it$ t$e co%rt.
75

More t$an an't$ing else t$e &arties b' a solemn !oc%ment (reel' an! vol%ntaril' agree! %&on b' t$em agree! to be bo%n! b' t$e re&ort o( t$e commission an! a&&rove! b' t$e trial co%rt. 2$e agreement is a contract bet,een t$e &arties. *t $as t$e (orce o( la, bet,een t$em an! s$o%l! be com&lie! ,it$ in goo! (ait$. #rticle 11C8 an! 111C o( t$e Civil Co!e e4&licitl' &rovi!es: #rt. 11C8. Obligations arising (rom contracts $ave t$e (orce o( la, bet,een t$e contracting &arties an! s$o%l! be com&lie! ,it$ in goo! (ait$. #rt. 111C. Contracts are &er(ecte! b' mere consent an! (rom t$at moment t$e &arties are bo%n! not onl' to t$e (%l(illment o( ,$at $as been e4&ressl' sti&%late! b%t also to all t$e conse.%ences ,$ic$ accor!ing to t$eir nat%re ma' be in +ee&ing ,it$ goo! (ait$ %sage an! la,. F%rt$ermore !%ring t$e $earing on // November 188G &etitioner !i! not inter&ose a serio%s ob9ection. *t is t$ere(ore too late (or &etitioner to .%estion t$e val%ation no, ,it$o%t violating t$e &rinci&le o( e.%itable esto&&el. 3sto&&el in &ais arises ,$en one b' $is acts re&resentations or a!missions or b' $is o,n silence ,$en $e o%g$t to s&ea+ o%t intentionall' or t$ro%g$ c%l&able negligence in!%ces anot$er to believe certain (acts to e4ist an! s%c$ ot$er rig$t(%ll' relies an! acts on s%c$ belie( so t$at $e ,ill be &re9%!ice! i( t$e (ormer is &ermitte! to !en' t$e e4istence o( s%c$ (acts. -ecor!s s$o, t$at &etitioner consente! to con(orm ,it$ t$e val%ation recommen!e! b' t$e commissioners. *t cannot !etract (rom its agreement no, an! assail correctness o( t$e commissionersH assessment. Finall' ,$ile )ection 0 -%le G7 o( t$e -%les o( Co%rt &rovi!es t$at 9%st com&ensation s$all be !etermine! at t$e time o( t$e (iling o( t$e com&laint (or e4&ro&riation s%c$ la, cannot &revail over -.#. 71G5 ,$ic$ is a s%bstantive la,. 9agono# Mar:et $en ors Ass?n v. Municipalit# o! 9agono# Facts: On October 1 188G t$e )angg%niang Ba'an o( Hagono' B%lacan enacte! an or!inance Ma%t%san Blg. /8 ,$ic$ increase! t$e stall rentals o( t$e mar+et ven!ors in Hagono'. #rticle 1 &rovi!e! t$at it s$all ta+e e((ect %&on a&&roval. 2$e s%b9ect or!inance ,as &oste! (rom November 0D/C 188G. *n t$e last ,ee+ o( November 1887 t$e &etitioner>s members ,ere &ersonall' given co&ies o( t$e a&&rove! Or!inance an! ,ere in(orme! t$at it s$all be en(orce! in 7an%ar' 1888. On December 8 1887 t$e &etitioner>s =resi!ent (ile! an a&&eal ,it$ t$e )ecretar' o( 7%stice assailing t$e constit%tionalit' o( t$e ta4 or!inance. =etitioner claime! it ,as %na,are o( t$e &osting o( t$e or!inance. -es&on!ent o&&ose! t$e a&&eal. *t conten!e! t$at t$e or!inance too+ e((ect on October G 188G an! t$at t$e or!inance as a&&rove! ,as &oste! as re.%ire! b' la,. Hence it ,as &ointe! o%t t$at &etitioner>s a&&eal ma!e over a 'ear later ,as alrea!' timeDbarre!. 2$e )ecretar' o( 7%stice !ismisse! t$e a&&eal on t$e gro%n! t$at it ,as (ile! o%t o( time i.e. be'on! 15 !a's (rom t$e e((ectivit' o( t$e Or!inance on October 1 188G as &rescribe! %n!er )ection 187 o( t$e 1881 LGC. Citing t$e case o( 2aRa!a vs. 2%vera t$e )ecretar' o( 7%stice $el! t$at t$e !ate o( e((ectivit' o( t$e s%b9ect or!inance retroacte! to t$e !ate o( its a&&roval in October 188G a(ter t$e re.%ire! &%blication or &osting $as been com&lie! ,it$ &%rs%ant to )ection 1 o( sai! or!inance. #(ter its motion (or reconsi!eration ,as !enie! &etitioner a&&eale! to t$e Co%rt o( #&&eals. =etitioner !i! not assail t$e (in!ing o( t$e )ecretar' o( 7%stice t$at t$eir a&&eal ,as (ile! be'on! t$e reglementar' &erio!. *nstea! it %rge! t$at t$e )ecretar' o( 7%stice s$o%l! $ave overloo+e! t$is Emere tec$nicalit'F an! r%le! on its &etition on t$e merits. @n(ort%natel' its &etition (or revie, ,as !ismisse! b' t$e Co%rt o( #&&eals (or being (ormall' !e(icient as it ,as not accom&anie! b' certi(ie! tr%e co&ies o( t$e assaile! -esol%tions o( t$e )ecretar' o( 7%stice. @n!a%nte! t$e &etitioner move! (or reconsi!eration b%t it ,as !enie!. *ss%es: 1. 6ON t$e C# ,as correct in !ismissing t$e &etition (or revie, (or &etitioner>s (ail%re to attac$ certi(ie! tr%e co&ies o( t$e assaile! -esol%tions o( t$e )ecretar' o( 7%stice. :3). *n its Motion (or -econsi!eration be(ore t$e Co%rt o( #&&eals t$e &etitioner satis(actoril' e4&laine! t$e circ%mstances relative to its (ail%re to attac$ to its a&&eal certi(ie! tr%e co&ies o( t$e assaile! -esol%tions o( t$e )ecretar' o( 7%stice t$%s: !%ring t$e &re&aration o( t$e &etition on October /1 1888 it ,as raining ver' $ar! !%e to ;t<'&$oon ELoleng.F 6$en t$e &etition ,as com&lete! co&' ,as serve! on t$e De&artment o( 7%stice at abo%t ;sic< &ast 0:55 &.m. o( October /1 1888 ,it$ ;t$e< instr%ction to $ave
71

t$e -esol%tions o( t$e De&artment o( 7%stice be stam&e! as Ecerti(ie! tr%e co&ies. Ho,ever !%e to ba! ,eat$er t$e &erson in c$arge ;at t$e De&artment o( 7%stice< ,as no longer available to certi(' to ;sic< t$e -esol%tions. E2$e (ollo,ing !a' October // 1888 ,as !eclare! a nonD ,or+ing $oli!a' beca%se o( ;t<'&$oon ELoleng.F 2$%s &etitioner ,as again %nable to $ave t$e -esol%tions o( t$e De&artment o( 7%stice stam&e! Ecerti(ie! tr%e co&ies.F *n t$e morning o( October /1 1888 !%e to time constraint;s< $erein co%nsel serve! a co&' b' &ersonal service on ;r<es&on!ent>s la,'er at ;sic< Malolos B%lacan !es&ite t$e (loo!e! roa!s an! $eav' rains. Ho,ever as t$e $erein co%nsel ,ent bac+ to Manila ;o((icial b%siness in< government o((ices ,ere s%s&en!e! in t$e a(ternoon an! t$e &ersonnel o( t$e De&artment o( 7%stice tas+e! ,it$ iss%ing or stam&ing Ecerti(ie! tr%e co&iesF o( t$eir -esol%tions ,ere no longer available. E2o avoi! being timeD barre! in t$e (iling o( t$e ;&<etition t$e same ,as (ile! ,it$ t$e Co%rt o( #&&eals Eas is.F C# erre! in !ismissing &etitioner>s a&&eal on t$e gro%n! t$at it ,as (ormall' !e(icient. *t is clear (rom t$e recor!s t$at t$e &etitioner e4erte! !%e !iligence to get t$e co&ies o( its a&&eale! -esol%tions certi(ie! b' t$e De&artment o( 7%stice b%t (aile! to !o so on acco%nt o( t'&$oon ELoleng.F @n!er t$e circ%mstances res&on!ent a&&ellate co%rt s$o%l! $ave tem&ere! its strict a&&lication o( &roce!%ral r%les in vie, o( t$e (ort%ito%s event consi!ering t$at litigation is not a game o( tec$nicalities /. 6ON t$e a&&eal ,as timeDbarre!. :3). 2$e a&&licable la, is )ection 187 o( t$e 1881 LGC ,$ic$ &rovi!es: E)3C. 187. =roce!%re (or #&&roval an! 3((ectivit' o( 2a4 Or!inances an! -even%e Meas%resA Man!ator' =%blic Hearings. D 2$e &roce!%re (or t$e a&&roval o( local ta4 or!inances an! reven%e meas%res s$all be in accor!ance ,it$ t$e &rovisions o( t$is Co!e: =rovi!e! 2$at &%blic $earings s$all be con!%cte! (or t$e &%r&ose &rior to t$e enactment t$ereo(: =rovi!e! (%rt$er 2$at an' .%estion on t$e constit%tionalit' or legalit' o( ta4 or!inances or reven%e meas%res ma' be raise! on a&&eal ,it$in t$irt' ;15< !a's (rom t$e e((ectivit' t$ereo( to t$e )ecretar' o( 7%stice ,$o s$all ren!er a !ecision ,it$in si4t' ;G5< !a's (rom t$e recei&t o( t$e a&&eal: =rovi!e! $o,ever 2$at s%c$ a&&eal s$all not $ave t$e e((ect o( s%s&en!ing t$e e((ectivit' o( t$e or!inance an! accr%al an! &a'ment o( t$e ta4 (ee or c$arge levie! t$erein: =rovi!e! (inall' 2$at ,it$in t$irt' ;15< !a's a(ter recei&t o( t$e !ecision or t$e la&se o( t$e si4t'D!a' &erio! ,it$o%t t$e )ecretar' o( 7%stice acting %&on t$e a&&eal t$e aggrieve! &art' ma' (ile a&&ro&riate &rocee!ings. 2$e a(orecite! la, re.%ires t$at an a&&eal o( a ta4 or!inance or reven%e meas%re s$o%l! be ma!e to t$e )ecretar' o( 7%stice ,it$in t$irt' ;15< !a's (rom e((ectivit' o( t$e or!inance an! even !%ring its &en!enc' t$e e((ectivit' o( t$e assaile! or!inance s$all not be s%s&en!e!. *n t$e case at bar M%nici&al Or!inance No. /8 too+ e((ect in October 188G. =etitioner (ile! its a&&eal onl' in December 1887 more t$an a 'ear a(ter t$e e((ectivit' o( t$e or!inance in 188G. Clearl' t$e )ecretar' o( 7%stice correctl' !ismisse! it (or being timeDbarre!. #t t$is &oint it is a&ro&os to state t$at t$e time(rame (i4e! b' la, (or &arties to avail o( t$eir legal reme!ies be(ore com&etent co%rts is not a Emere tec$nicalit'F t$at can be easil' br%s$e! asi!e. 2$e &erio!s state! in )ection 187 o( t$e LGC are man!ator'. Or!inance No. /8 is a reven%e meas%re a!o&te! b' t$e m%nici&alit' o( Hagono' to (i4 an! collect &%blic mar+et stall rentals. Being its li(ebloo! collection o( reven%es b' t$e government is o( &aramo%nt im&ortance. 2$e (%n!s (or t$e o&eration o( its agencies an! &rovision o( basic services to its in$abitants are largel' !erive! (rom its reven%es an! collections. 2$%s it is essential t$at t$e vali!it' o( reven%e meas%res is not le(t %ncertain (or a consi!erable lengt$ o( time. Hence t$e la, &rovi!e! a time limit (or an aggrieve! &art' to assail t$e legalit' o( reven%e meas%res an! ta4 or!inances. /. 6ON t$e &erio! to a&&eal s$o%l! be co%nte! not (rom t$e time t$e or!inance too+ e((ect in 188G b%t (rom t$e time its
7/

members ,ere &ersonall' given co&ies o( t$e a&&rove! or!inance in November 1887. NO =etitioner insists t$at it ,as %na,are o( t$e a&&roval an! e((ectivit' o( t$e s%b9ect or!inance in 188G on t,o ;/< gro%n!s: (irst no &%blic $earing ,as con!%cte! &rior to t$e &assage o( t$e or!inance an! secon! t$e a&&rove! or!inance ,as not &oste!. =etitioner>s bol! assertion t$at t$ere ,as no &%blic $earing con!%cte! &rior to t$e &assage o( Ma%t%san Blg. /8 is belie! b' its o,n evi!ence. *n &etitioner>s t,o ;/< comm%nications ,it$ t$e )ecretar' o( 7%stice it en%merate! t$e vario%s ob9ections raise! b' its members be(ore t$e &assage o( t$e or!inance in several meetings calle! b' t$e )angg%nian (or t$e &%r&ose. 2$ese s$o, be'on! !o%bt t$at &etitioner ,as a,are o( t$e &ro&ose! increase an! in (act &artici&ate! in t$e &%blic $earings t$ere(or. 2$e res&on!ent m%nici&alit' li+e,ise s%bmitte! t$e Min%tes an! -e&ort o( t$e &%blic $earings con!%cte! b' t$e )angg%niang Ba'an>s Committee on #&&ro&riations an! Mar+et on Febr%ar' G 7%l' 1C an! #%g%st 18 all in 188G (or t$e &ro&ose! increase in t$e stall rentals. =etitioner cannot gri&e t$at t$ere ,as &racticall' no &%blic $earing con!%cte! as its ob9ections to t$e &ro&ose! meas%re ,ere not consi!ere! b' t$e )angg%niang Ba'an. 2o be s%re &%blic $earings are con!%cte! b' legislative bo!ies to allo, intereste! &arties to ventilate t$eir vie,s on a &ro&ose! la, or or!inance. 2$ese vie,s $o,ever are not bin!ing on t$e legislative bo!' an! it is not com&elle! b' la, to a!o&t t$e same. )angg%nian members are electe! b' t$e &eo&le to ma+e la,s t$at ,ill &romote t$e general interest o( t$eir constit%ents. 2$e' are man!ate! to %se t$eir !iscretion an! best 9%!gment in serving t$e &eo&le. =arties ,$o &artici&ate in &%blic $earings to give t$eir o&inions on a &ro&ose! or!inance s$o%l! not e4&ect t$at t$eir vie,s ,o%l! be &atroniBe! b' t$eir la,ma+ers. On t$e iss%e o( &%blication or &osting )ection 188 o( t$e LGC &rovi!es: E)ection 188. =%blication o( 2a4 Or!inance an! -even%e Meas%res. 6it$in ten ;15< !a's a(ter t$eir a&&roval certi(ie! tr%e co&ies o( all &rovincial cit' an! m%nici&al ta4 or!inances or reven%e meas%res s$all be &%blis$e! in (%ll (or t$ree ;1< consec%tive !a's in a ne,s&a&er o( local circ%lationA =rovi!e! $o,ever 2$at in &rovinces cities an! m%nici&alities ,$ere t$ere are no ne,s&a&ers o( local circ%lation t$e same ma' be &oste! in at least t,o ;/< cons&ic%o%s an! &%blicl' accessible &laces.F )angg%niang Ba'an o( t$e M%nici&alit' o( Hagono' B%lacan &resente! evi!ence ,$ic$ clearl' s$o,s t$at t$e &roce!%re (or t$e enactment o( t$e assaile! or!inance ,as com&lie! ,it$. M%nici&al Or!inance No. /8 ,as enacte! b' t$e )angg%niang Ba'an o( Hagono' on October 1 188G. 2$en #cting M%nici&al Ma'or Maria Garcia )antos a&&rove! t$e Or!inance on October 7 188G. #(ter its a&&roval co&ies o( t$e Or!inance ,ere given to t$e M%nici&al 2reas%rer on t$e same !a'. On November 8 188G t$e Or!inance ,as a&&rove! b' t$e )angg%niang =anlala,igan. 2$e Or!inance ,as &oste! !%ring t$e &erio! (rom November 0 D /C 188G in t$ree ;1< &%blic &laces viB: in (ront o( t$e m%nici&al b%il!ing at t$e b%lletin boar! o( t$e )ta. #na =aris$ C$%rc$ an! on t$e (ront !oor o( t$e O((ice o( t$e Mar+et Master in t$e &%blic mar+et. =osting ,as vali!l' ma!e in lie% o( &%blication as t$ere ,as no ne,s&a&er o( local circ%lation in t$e m%nici&alit' o( Hagono'. 2$is (act ,as +no,n to an! a!mitte! b' &etitioner. 2$%s &etitioner>s ambig%o%s an! %ns%&&orte! claim t$at it ,as onl' Esometime in November 1887F t$at t$e =rovincial Boar! a&&rove! M%nici&al Or!inance No. /8 an! so t$e &osting co%l! not $ave been ma!e in November 188G ,as s%((icientl' !is&rove! b' t$e &ositive evi!ence o( res&on!ent m%nici&alit'. Given t$e (oregoing circ%mstances &etitioner cannot vali!l' claim lac+ o( +no,le!ge o( t$e a&&rove! or!inance. 2$e (iling o( its a&&eal a 'ear a(ter t$e e((ectivit' o( t$e s%b9ect or!inance is (atal to its ca%se.
71

QQ3ven on t$e s%bstantive &oints raise! t$e &etition m%st (ail. )ection Gc.50 o( t$e 1881 M%nici&al -even%e Co!e an! )ection 181 o( t$e LGC limiting t$e &ercentage o( increase t$at can be im&ose! a&&l' to ta4 rates not rentals. Neit$er can it be sai! t$at t$e rates ,ere not %ni(orml' im&ose! or t$at t$e &%blic mar+ets incl%!e! in t$e Or!inance ,ere %nreasonabl' !etermine! or classi(ie!. 2o be s%re t$e Or!inance covere! t$e t$ree ;1< concrete &%blic mar+ets: t$e t,oDstore' Bagong =aleng+e t$e b%rnt b%t reconstr%cte! L%mang =aleng+e an! t$e more recent L%mang =aleng+e ,it$ ,et mar+et. Ho,ever t$e =aleng+eng Bagong M%nisi&'o or Gabal!on ,as e4cl%!e! (rom t$e increase in rentals as it is onl' a ma+es$i(t !ila&i!ate! &lace ,it$ no !oors or &rotection (or sec%rit' inten!e! (or transient &e!!lers ,$o %se! to sell t$eir goo!s along t$e si!e,al+. Republic v. CA Facts: =etitioner instit%te! e4&ro&riation &rocee!ings covering contig%o%s lan! sit%ate! along Mac#rt$%r Hig$,a' Malolos B%lacan to be %tiliBe! (or t$e contin%e! broa!cast o&eration an! %se o( ra!io transmitter (acilities (or t$e EKoice o( t$e =$ili&&inesF &ro9ect. =etitioner t$ro%g$ t$e =$ili&&ine *n(ormation #genc' too+ over t$e &remises a(ter t$e &revio%s lessee t$e EKoice o( #merica F $a! cease! its o&erations t$ereat. 2$e national government (aile! to &a' to $erein res&on!ents t$e com&ensation &%rs%ant to t$e (oregoing !ecision s%c$ t$at a little over (ive 'ears later res&on!ents (ile! a mani(estation ,it$ a motion see+ing &a'ment (or t$e e4&ro&riate! &ro&ert'. *n t$e meantime =resi!ent 3stra!a iss%e! =roclamation No. // trans(erring /5 $ectares o( t$e e4&ro&riate! &ro&ert' to t$e B%lacan )tate @niversit' (or t$e e4&ansion o( its (acilities an! anot$er C $ectares to be %se! e4cl%sivel' (or t$e &ro&agation o( t$e =$ili&&ine carabao. 2$e remaining &ortion ,as retaine! b' t$e =*#. 2$e )antos $eirs remaine! %n&ai! an! no action ,as ta+en on t$eir case %ntil &etitioner (ile! its mani(estation an! motion to &ermit t$e !e&osit in co%rt o( t$e amo%nt o( =0 GG0 555.55 b' ,a' o( 9%st com&ensation (or t$e e4&ro&riate! &ro&ert' o( t$e late L%is )antos s%b9ect to s%c$ (inal com&%tation as mig$t be a&&rove! b' t$e co%rt. 2$is time t$e )antos $eirs o&&osing t$e mani(estation an! motion s%bmitte! a co%nterDmotion to a!9%st t$e com&ensation (rom =G.55 &er s.%are meter &revio%sl' (i4e! in t$e 1878 !ecision to its c%rrent Bonal val%ation &egge! at =C 555.55 &er s.%are meter or in t$e alternative to ca%se t$e ret%rn to t$em o( t$e e4&ro&riate! &ro&ert'. #ssailing t$e (in!ing o( &rescri&tion b' t$e trial co%rt &etitioner $ere &osite! t$at a motion ,$ic$ res&on!ents $a! (ile! on 17 Febr%ar' 1880 (ollo,e! %& b' ot$er motions s%bse.%ent t$ereto ,as ma!e ,it$in t$e reglementar' &erio! t$at t$ereb' interr%&te! t$e CD'ear &rescri&tive &erio! ,it$in ,$ic$ to en(orce t$e 1878 9%!gment. F%rt$ermore &etitioner claime! t$e recei&t b' res&on!ents o( &artial com&ensation in t$e s%m o( =7/ G81.CC on /1 7%l' 1880 constit%te! &artial com&liance on t$e &art o( &etitioners an! e((ectivel' esto&&e! res&on!ents (rom invo+ing &rescri&tion e4&resse! in )ection G -%le 18 o( t$e -%les o( Co%rt. *n o&&osing t$e &etition res&on!ents a!vance! t$e vie, t$at &%rs%ant to )ection G -%le 18 o( t$e -%les o( Co%rt t$e (ail%re o( &etitioner to e4ec%te t$e 9%!gment !ate! /G Febr%ar' 1878 ,it$in (ive 'ears a(ter it $a! become (inal an! e4ec%tor' ren!ere! it %nen(orceable b' mere motion. 2$e motion (or &a'ment !ate! 58 Ma' 1880 as ,ell as t$e s%bse.%ent !isb%rsement to t$em o( t$e s%m o( =7/ G81.CC b' t$e &rovincial treas%rer o( B%lacan co%l! not be consi!ere! as $aving interr%&te! t$e (iveD'ear &erio! since a motion to be consi!ere! ot$er,ise s$o%l! instea! be ma!e b' t$e &revailing &art' in t$is case b' &etitioner. -es&on!ents maintaine! t$at t$e =7/ G81.CC &ai! to t$em b' t$e &rovincial treas%rer o( B%lacan &%rs%ant to t$e 1880 or!er o( t$e trial co%rt ,as &art o( t$e initial !e&osit ma!e b' &etitioner ,$en it (irst entere! &ossession o( t$e &ro&ert' in 18G8 an! s$o%l! not be so regar!e! as a &artial &a'ment. -es&on!ents (%rt$er .%estione! t$e rig$t o( =*# to trans(er o,ners$i& o( a &ortion o( t$e &ro&ert' to t$e B%lacan )tate @niversit' even ,$ile t$e 9%st com&ensation !%e t$e $eirs $a! 'et to be (inall' settle!. *ss%e: 6ON t$e e4&ro&riate! &ro&ert' ma' be ret%rne!. NO. 2$e rig$t o( eminent !omain is %s%all' %n!erstoo! to be an %ltimate rig$t o( t$e sovereign &o,er to a&&ro&riate an' &ro&ert' ,it$in its territorial sovereignt' (or a &%blic &%r&ose. F%n!amental to t$e in!e&en!ent e4istence o( a )tate it re.%ires no recognition b' t$e Constit%tion ,$ose &rovisions are ta+en as being merel' con(irmator' o( its &resence an! as being reg%lator' at most in t$e !%e e4ercise o( t$e &o,er. *n t$e $an!s o( t$e legislat%re t$e &o,er is in$erent its sco&e
70

matc$ing t$at o( ta4ation even t$at o( &olice &o,er itsel( in man' res&ects. *t reac$es to ever' (orm o( &ro&ert' t$e )tate nee!s (or &%blic %se an! as an ol! case so &%ts it all se&arate interests o( in!ivi!%als in &ro&ert' are $el! %n!er a tacit agreement or im&lie! reservation vesting %&on t$e sovereign t$e rig$t to res%me t$e &ossession o( t$e &ro&ert' ,$enever t$e &%blic interest so re.%ires it. 2$e %bi.%ito%s c$aracter o( eminent !omain is mani(est in t$e nat%re o( t$e e4&ro&riation &rocee!ings. 34&ro&riation &rocee!ings are not a!versarial in t$e conventional sense (or t$e con!emning a%t$orit' is not re.%ire! to assert an' con(licting interest in t$e &ro&ert'. 2$%s b' (iling t$e action t$e con!emnor in e((ect merel' serves notice t$at it is ta+ing title an! &ossession o( t$e &ro&ert' an! t$e !e(en!ant asserts title or interest in t$e &ro&ert' not to &rove a rig$t to &ossession b%t to &rove a rig$t to com&ensation (or t$e ta+ing. Obvio%sl' $o,ever t$e &o,er is not ,it$o%t its limits: (irst t$e ta+ing m%st be (or &%blic %se an! secon! t$at 9%st com&ensation m%st be given to t$e &rivate o,ner o( t$e &ro&ert'. 2$ese t,in &roscri&tions $ave t$eir origin in t$e recognition o( t$e necessit' (or ac$ieving balance bet,een t$e )tate interests on t$e one $an! an! &rivate rig$ts %&on t$e ot$er $an! b' e((ectivel' restraining t$e (ormer an! a((or!ing &rotection to t$e latter. *n !etermining E&%blic %se F t,o a&&roac$es are %tiliBe! D t$e (irst is &%blic em&lo'ment or t$e act%al %se b' t$e &%blic an! t$e secon! is &%blic a!vantage or bene(it. *t is also %se(%l to vie, t$e matter as being s%b9ect to constant gro,t$ ,$ic$ is to sa' t$at as societ' a!vances its !eman!s %&on t$e in!ivi!%al so increases an! eac$ !eman! is a ne, %se to ,$ic$ t$e reso%rces o( t$e in!ivi!%al ma' be !evote!. 2$e e4&ro&riate! &ro&ert' $as been s$o,n to be (or t$e contin%e! %tiliBation b' t$e =*# a signi(icant &ortion t$ereo( being ce!e! (or t$e e4&ansion o( t$e (acilities o( t$e B%lacan )tate @niversit' an! (or t$e &ro&agation o( t$e =$ili&&ine carabao t$emselves in line ,it$ t$e re.%irements o( &%blic &%r&ose. -es&on!ents .%estion t$e &%blic nat%re o( t$e %tiliBation b' &etitioner o( t$e con!emne! &ro&ert' &ointing o%t t$at its &resent %se !i((ers (rom t$e &%r&ose originall' contem&late! in t$e 18G8 e4&ro&riation &rocee!ings. 2$e arg%ment is o( no moment. 2$e &ro&ert' $as ass%me! a &%blic c$aracter %&on its e4&ro&riation. )%rel' &etitioner as t$e con!emnor an! as t$e o,ner o( t$e &ro&ert' is ,ell ,it$in its rig$ts to alter an! !eci!e t$e %se o( t$at &ro&ert' t$e onl' limitation being t$at it be (or &%blic %se ,$ic$ !eci!e!l' it is. *n insisting on t$e ret%rn o( t$e e4&ro&riate! &ro&ert' res&on!ents ,o%l! e4$ort on t$e &rono%ncement in =rovincial Government o( )orsogon vs. K!a. !e Killaro'a ,$ere t$e %n&ai! lan!o,ners ,ere allo,e! t$e alternative reme!' o( recover' o( t$e &ro&ert' t$ere in .%estion. *t mig$t be borne in min! t$at t$e case involve! t$e m%nici&al government o( )orsogon to ,$ic$ t$e &o,er o( eminent !omain is not in$erent b%t merel' !elegate! an! o( limite! a&&lication. 2$e grant o( t$e &o,er o( eminent !omain to local governments %n!er -e&%blic #ct No. 71G5 cannot be %n!erstoo! as being t$e &ervasive an! allD encom&assing &o,er veste! in t$e legislative branc$ o( government. For local governments to be able to ,iel! t$e &o,er it m%st b' enabling la, be !elegate! to it b' t$e national legislat%re b%t even t$en t$is !elegate! &o,er o( eminent !omain is not strictl' s&ea+ing a &o,er o( eminent b%t onl' o( in(erior !omain or onl' as broa! or con(ine! as t$e real a%t$orit' ,o%l! ,ant it to be. 2$e e4ercise o( s%c$ rig$ts veste! to it as t$e con!emnee in!ee! $as amo%nte! to at least a &artial com&liance or satis(action o( t$e 1878 9%!gment t$ereb' &reem&ting an' claim o( bar b' &rescri&tion on gro%n!s o( nonDe4ec%tion. *n arg%ing (or t$e ret%rn o( t$eir &ro&ert' on t$e basis o( nonD &a'ment res&on!ents ignore t$e (act t$at t$e rig$t o( t$e e4&ro&riator' a%t$orit' is (ar (rom t$at o( an %n&ai! seller in or!inar' sales to ,$ic$ t$e reme!'
7C

o( rescission mig$t &er$a&s a&&l'. #n in rem &rocee!ing con!emnation acts %&on t$e &ro&ert'. #(ter con!emnation t$e &aramo%nt title is in t$e &%blic %n!er a ne, an! in!e&en!ent titleA t$%s b' giving notice to all claimants to a !is&%te! title con!emnation &rocee!ings &rovi!e a 9%!icial &rocess (or sec%ring better title against all t$e ,orl! t$an ma' be obtaine! b' vol%ntar' conve'ance. =rivate res&on!ents alt$o%g$ not entitle! to t$e ret%rn o( t$e e4&ro&riate! &ro&ert' !eserve to be &ai! &rom&tl' on t$e 'et %n&ai! a,ar! o( 9%st com&ensation alrea!' (i4e! b' (inal 9%!gment o( t$e B%lacan -2C on /G Febr%ar' 1878 at =G.55 &er s.%are meter ,it$ legal interest t$ereon at 1/Y &er ann%m com&%te! (rom t$e !ate o( "ta+ing" o( t$e &ro&ert' i.e. 18 )e&tember 18G8 ;instit%tion o( con!emnation &rocee!ings< %ntil t$e !%e amo%nt s$all $ave been (%ll' &ai!. # cit' li+e Zamboanga ma' im&ose in lie% o( t$e gra!%ate! (i4e! ta4 &rescribe! %n!er )ection 18 o( t$e Local 2a4 Co!e a &ercentage ta4 on t$e gross sales (or t$e &rece!ing calen!ar 'ear o( nonD essential commo!ities at t$e rate o( not e4cee!ing t,o &er cent an! on t$e gross sales o( essential commo!ities at t$e rate o( not e4cee!ing one &er cent. 2$e Or!inance is %ltra vires as it is not ,it$in t$e a%t$orit' o( t$e Cit' to im&ose sai! ta4. 2$e a%t$orit' o( t$e Cit' is limite! to t$e im&osition o( a &ercentage ta4 on t$e gross sales or recei&ts o( sai! &ro!%ct ,$ic$ being nonDessential s$all be at t$e rate o( not e4cee!ing /Y o( t$e gross sales or recei&ts o( t$e so(t!rin+s (or t$e &rece!ing calen!ar 'ear. 2$e ta4 being im&ose! %n!er sai! Or!inance is base! on t$e o%t&%t or &ro!%ction an! not on t$e gross sales or recei&ts as a%t$oriBe! %n!er t$e Local 2a4 Co!e. 3ven i( t$e )ecretar' o( Finance (aile! to revie, or act on t$e Or!inance ,it$in t$e &rescribe! &erio! o( 1/5 !a's it !oes not (ollo, as a legal conse.%ence t$ereo( t$at an ot$er,ise invali! or!inance is t$ereb' vali!ate!. M%c$ less can it be inter&rete! to mean t$at t$e )ecretar' o( Finance can no longer act b' s%s&en!ing an!?or revo+ing an invali! or!inance even a(ter t$e la&se o( t$e 1/5D!a' &erio!. #ll t$at t$e la, sa's is t$at a(ter sai! &erio! t$e ta4 or!inance s$all remain in (orce. 2$e &rescribe! &erio! (or revie, is onl' !irector' an! t$e )ecretar' o( Finance ma' still revie, t$e or!inance an! act accor!ingl' even a(ter t$e la&se o( t$e sai! &erio! &rovi!e! $e acts ,it$in a reasonable time. Conse.%entl' even a(ter t$e &rescribe! &erio! $as la&se! s$o%l! t$e )ecretar' o( Finance %&on revie, (in! t$at t$e ta4 or (ee levie! or im&ose! is %n9%st e4cessive o&&ressive con(iscator' or not among t$ose t$at t$e &artic%lar local government ma' im&ose in t$e e4ercise o( its &o,er in accor!ance ,it$ t$is Co!eA or ,$en t$e ta4 or!inance is in ,$ole or in &art contrar' to t$e
%stanislao v. Costales Facts: 2$e )angg%niang =angl%nso! o( Zamboanga Cit' &asse! Or!inance No. 00 ,$ic$ im&oses a =5.51 ta4 &er liter o( so(t!rin+s &ro!%ce! man%(act%re! an!?or bottle! ,it$in t$e cit'. 2$e Minister o( Finance sent a letter to t$e )angg%nian s%s&en!ing t$e e((ectivit' o( t$e Or!inance on t$e gro%n! t$at it contravenes )ec 18 ;a< o( t$e Local 2a4 Co!e. Zamboanga a&&eale! t$e s%s&ension in t$e -2C. -2C: t$e ta4 im&ose! b' t$e Or!inance is not among t$ose t$at t$e )angg%nian ma' im&ose %n!er t$e Local 2a4 Co!e b%t %&$el! its vali!it' sa'ing t$at t$e Finance Minister !i! not act on it ,?in 1/5 !a's (rom recei&t o( t$e &etition. Finance )ecretar' a&&eale!. *ss%e: 6ON Or!inance 00 is vali!. NO.
7G

!eclare! national economic &olic'A or ,$en t$e or!inance is !iscriminator' in nat%re on t$e con!%ct o( b%siness or calling or in restraint o( tra!e t$e )ecretar' o( Finance ma' certainl' s%s&en! t$e e((ectivit' o( s%c$ or!inance an! revo+e t$e same ,it$o%t &re9%!ice to t$e rig$t to a&&eal to t$e co%rts ,it$in 15 !a's a(ter recei&t o( t$e notice o( s%s&ension. 2$e same r%le s$o%l! a&&l' to t$e &rovincial an! cit' treas%rers as t$e case ma' be %n!er )ection 00 o( t$e Local 2a4 Co!e. Or!inance No. 00: n%ll an! voi!. #n' ta4es &ai! %n!er &rotest t$ere%n!er s$o%l! be accor!ingl' re(%n!e! to t$e ta4&a'ers concerne!. Philippine Petroleum Corporation v. Municipalit# o! Pililia Facts: ==C is engage! in t$e man%(act%re o( l%bricate! oil basestoc+ ,$ic$ is a &etrole%m &ro!%ct ,it$ its re(iner' &lant in Mala'a =ililia -iBal. )ec. 10/ ;N*-C o( 1818<: Man%(act%re! oils an! ot$er (%els are s%b9ect to s&eci(ic ta4. =D /11: Local 2a4 Co!e: M%nici&alit' ma' im&ose ta4es on b%siness e4ce&t t$ose (or ,$ic$ (i4e! ta4es are &rovi!e! on man%(act%rers im&orters or &ro!%cers o( an' article o( commerce o( ,$atever +in! or nat%re incl%!ing bre,ers !istillers recti(iers an! com&o%n!ers o( li.%ors !istille! s&irits an!? or ,ines. Finance )ecretar' iss%e! =rovincial Circ%lar No. /GD71 ,$ic$ !irecte! all LG@ treas%rers to re(rain (rom collecting an' local ta4 im&ose! in ol! or ne, or!inances in t$e b%siness o( man%(act%ring ,$olesaling retailing or !ealing in &etrole%m &ro!%cts s%b9ect to s&eci(ic ta4 %n!er t$e N*-CA an! =rovincial Circ%lar No. /G #D71: *nstr%cte! treas%rers to sto& collecting an' local ta4 im&ose! on t$e b%sinesses o( man%(act%ring ,$olesaling retailing or !ealing in &etrole%m &ro!%cts s%b9ect to t$e s&eci(ic ta4 %n!er t$e N*-C &%rs%ant to or!inances enacte! be(ore or a(ter t$e e((ectivit' o( t$e Local 2a4 Co!e on 1 7%l' 1871. M%nici&alit' o( =ililia im&ose! M%nici&al 2a4 Or!inance No. 1 ;=ililia 2a4 Co!e< )ec 8P15 im&ose! a ta4 on b%siness e4ce&t (or t$ose ,$ic$ (i4e! ta4es are &rovi!e! in t$e L2C on man%(act%rers im&orters or &ro!%cers o( an' article o( commerce o( ,$atever +in! or nat%re incl%!ing bre,ers !istillers recti(iers an! com&o%n!ers o( li.%ors !istille! s&irits an!? or ,ines as ,ell as ma'or>s &ermit sanitar' ins&ection (ee an! storage &ermit (ee (or (lammable comb%stible or e4&losive s%bstances On #&ril 11 1870 =.D. 01G ,as &rom%lgate! increasing t$e s&eci(ic ta4 on l%bricating oils gasoline b%n+er (%el oil !iesel (%el oil an! ot$er similar &etrole%m &ro!%cts levie! %n!er )ections 10/ 100 an! 10C o( t$e N*-C as amen!e! an! granting &rovinces cities an! m%nici&alities certain s$ares in t$e s&eci(ic ta4 on s%c$ &ro!%cts in lie% o( local ta4es im&ose! on &etrole%m &ro!%cts. 2$e .%estione! M%nici&al 2a4 Or!inance No. 1 ,as revie,e! an! a&&rove! b' t$e =rovincial 2reas%rer o( -iBal on 7an%ar' 11 187C ;-ollo &. 101< b%t ,as not im&lemente! an!?or en(orce! b' t$e M%nici&alit' o( =ililla beca%se o( its $aving been s%s&en!e! %& to no, in vie, o( =rovincial Circ%lar Nos. /GD71 an! /G #D71. =rovincial Circ%lar No. GD77 !ate! Marc$ 11 1877 ,as also iss%e! !irecting all cit' an! m%nici&al treas%rers to re(rain (rom collecting t$e soDcalle! storage (ee on (lammable or comb%stible materials im&ose! %n!er t$e local ta4 or!inance o( t$eir res&ective localit' sai! (ee &arta+ing o( t$e nat%re o( a strictl' reven%e meas%re or service c$arge. On 7%ne 1 1877 =.D. 11C8 ot$er,ise +no,n as t$e N*-C o( 1877 ,as enacte! )ection 1C1 o( ,$ic$ s&eci(icall' im&oses s&eci(ic ta4 on re(ine! an! man%(act%re! mineral oils an! motor (%els. 3n(orcing t$e &rovisions o( t$e aboveDmentione! or!inance t$e res&on!ent (ile! a com&laint against ==C (or t$e collection o( t$e b%siness ta4 (rom 1878 to 188GA storage &ermit (ees (rom 187C to 188GA ma'orHs &ermit an! sanitar' ins&ection (ees (rom 187C to 1880. ==C $o,ever $ave alrea!' &ai! t$e lastDname! (ees starting 188C. -2C: ==C to &a' b%siness ta4 storage &ermit (ee ma'or>s &ermit (ee sanitar' ins&ection (ee as ,ell as costs o( s%it. M- !enie!. *ss%e: 6ON ==C ,$ose oil &ro!%cts are s%b9ect to s&eci(ic ta4 %n!er t$e N*-C is still liable to &a' ta4 on b%siness an! storage (ees an! ma'orHs &ermit an! sanitar' ins&ection (ee %nto =ililla base! on M%nici&al Or!inance No. 1. ==C: ;a< =rovincial Circ%lar No. /G71 !eclare! as contrar' to national economic &olic' t$e im&osition o( local ta4es on t$e man%(act%re o( &etrole%m &ro!%cts as t$e' are alrea!' s%b9ect to s&eci(ic ta4 %n!er t$e N*-CA ;b< t$e above !eclaration covers not onl' ol! ta4 or!inances b%t ne, ones as ,ell as t$ose ,$ic$ ma' be enacte! in t$e (%t%reA ;c< bot$
77

=rovincial Circ%lars ;=C< /GD71 an! /G #D71 are still e((ective $ence %nless an! %ntil revo+e! an' e((ort on t$e &art o( t$e res&on!ent to collect t$e s%s&en!e! ta4 on b%siness (rom t$e &etitioner ,o%l! be illegal an! %na%t$oriBe!A an! ;!< )ection / o( =.D. 01G &ro$ibits t$e im&osition o( local ta4es on &etrole%m &ro!%cts. =C No. /GD71 an! =C No. /G #D 71 s%s&en!e! t$e e((ectivit' o( local ta4 or!inances im&osing a ta4 on b%siness %n!er )ection 18 ;a< o( t$e Local 2a4 Co!e ;=.D. No. /11< ,it$ regar! to man%(act%rers retailers ,$olesalers or !ealers in &etrole%m &ro!%cts s%b9ect to t$e s&eci(ic ta4 %n!er t$e N*-C N*-C in vie, o( )ection // ;b< o( t$e Co!e regar!ing nonDim&osition b' m%nici&alities o( ta4es on articles s%b9ect to s&eci(ic ta4 %n!er t$e &rovisions o( t$e N*-C. 2$ere is no .%estion t$at =ilillaHs M%nici&al 2a4 Or!inance No. 1 im&osing t$e assaile! ta4es (ees an! c$arges is vali! es&eciall' )ection 8 ;#< ,$ic$ accor!ing to t$e trial co%rt ",as li(te! in toto an!?or is a literal re&ro!%ction o( )ection 18 ;a< o( t$e Local 2a4 Co!e as amen!e! b' =.D. No. 0/G." *t con(orms ,it$ t$e man!ate o( sai! la,. B%t =.D. No. 0/G amen!ing t$e Local 2a4 Co!e is !eeme! to $ave re&eale! =rovincial Circ%lar Nos. /GD71 an! /G #D71 iss%e! b' t$e )ecretar' o( Finance ,$en )ections 18 an! 18 ;a< ,ere carrie! over into =.D. No. 0/G an! no e4em&tions ,ere given to man%(act%rers ,$olesalers retailers or !ealers in &etrole%m &ro!%cts. 6ellDsettle! is t$e r%le t$at a!ministrative reg%lations m%st be in $armon' ,it$ t$e &rovisions o( t$e la,. *n case o( !iscre&anc' bet,een t$e basic la, an! an im&lementing r%le or reg%lation t$e (ormer &revails. #s a&tl' $el! b' t$e co%rt a .%o: Necessaril' t$ere co%l! not be an' ot$er logical concl%sion t$an t$at t$e (ramers o( =.D. No. 0/G reall' an! act%all' inten!e! to terminate t$e e((ectivit' an!?or en(orceabilit' o( =rovincial Circ%lars Nos. /GD71 an! /G #D71 inasm%c$ as clearl' t$ese circ%lars are in contravention ,it$ )ec. 18 ;a< o( =.D. 0/GDt$e amen!ator' la, to =.D. No. /11. 2$at intention to terminate is ver' a&&arent an! in (act it is e4&resse! in clear an! %ne.%ivocal terms in t$e e((ectivit' an! re&ealing cla%se o( =.D. 0/G F%rt$ermore ,$ile )ection / o( =.D. 01G &ro$ibits t$e im&osition o( local ta4es on &etrole%m &ro!%cts sai! !ecree !i! not amen! )ections 18 an! 18 ;a< o( =.D. /11 as amen!e! b' =.D. 0/G ,$erein t$e m%nici&alit' is grante! t$e rig$t to lev' ta4es on b%siness o( man%(act%rers im&orters &ro!%cers o( an' article o( commerce o( ,$atever +in! or nat%re. # ta4 on b%siness is !istinct (rom a ta4 on t$e article itsel(. 2$%s i( t$e im&osition o( ta4 on b%siness o( man%(act%rers etc. in &etrole%m &ro!%cts contravenets a !eclare! national &olic' it s$o%l! $ave been e4&ressl' state! in =.D. No. 01G. 2$e e4ercise b' local governments o( t$e &o,er to ta4 is or!aine! b' t$e &resent Constit%tion. 2o allo, t$e contin%o%s e((ectivit' o( t$e &ro$ibition set (ort$ in =C No. /GD71 ;1< ,o%l! be tantamo%nt to restricting t$eir &o,er to ta4 b' mere a!ministrative iss%ances. @n!er )ection C #rticle J o( t$e 1887 Constit%tion onl' g%i!elines an! limitations t$at ma' be establis$e! b' Congress can !e(ine an! limit s%c$ &o,er o( local governments. 2$%s: 3ac$ local government %nit s$all $ave t$e &o,er to create its o,n so%rces o( reven%es an! to lev' ta4es (ees an! c$arges s%b9ect to s%c$ g%i!elines an! limitations as t$e Congress ma' &rovi!e consistent ,it$ t$e basic &olic' o( local a%tonom' . . . =rovincial Circ%lar No. GD77 en9oining all cit' an! m%nici&al treas%rers to re(rain (rom collecting t$e soDcalle! storage (ee on (lammable or comb%stible materials im&ose! in t$e local ta4 or!inance o( t$eir res&ective localit' (rees &etitioner ==C (rom t$e &a'ment o( storage &ermit (ee. 2$e storage &ermit (ee being im&ose! b' =ilillaHs ta4 or!inance is a (ee (or t$e installation an! +ee&ing in storage o( an' (lammable comb%stible or e4&losive s%bstances. *nasm%c$ as sai! storage ma+es %se o( tan+s o,ne! not b' t$e m%nici&alit' o( =ililla b%t b'
78

&etitioner ==C same is obvio%sl' not a c$arge (or an' service ren!ere! b' t$e m%nici&alit' as ,$at is envisione! in )ection 17 o( t$e same Co!e. )ection 15 ;B< ;11< o( =ilillaHs M%nici&al 2a4 Or!inance No. 1 &rescribing a &ermit (ee is a &ermit (ee allo,e! %n!er )ection 1G o( t$e amen!e! Co!e. #s to t$e a%t$orit' o( t$e ma'or to ,aive &a'ment o( t$e ma'orHs &ermit an! sanitar' ins&ection (ees t$e trial co%rt !i! not err in $ol!ing t$at "since t$e &o,er to ta4 incl%!es t$e &o,er to e4em&t t$ereo( ,$ic$ is essentiall' a legislative &rerogative it (ollo,s t$at a m%nici&al ma'or ,$o is an e4ec%tive o((icer ma' not %nilaterall' ,it$!ra, s%c$ an e4&ression o( a &olic' t$r% t$e enactment o( a ta4." 2$e ,aiver &arta+es o( t$e nat%re o( an e4em&tion. *t is an ancient r%le t$at e4em&tions (rom ta4ation are constr%e! in strictissimi 9%ris against t$e ta4&a'er an! liberall' in (avor o( t$e ta4ing a%t$orit'. 2a4 e4em&tions are loo+e! %&on ,it$ !is(avor. 2$%s in t$e absence o( a clear an! e4&ress e4em&tion (rom t$e &a'ment o( sai! (ees t$e ,aiver cannot be recogniBe!. #s alrea!' state! it is t$e la,Dma+ing bo!' an! not an e4ec%tive li+e t$e ma'or ,$o can ma+e an e4em&tion. @n!er )ection 1G o( t$e Co!e a &ermit (ee li+e t$e ma'orHs &ermit s$all be re.%ire! be(ore an' in!ivi!%al or 9%ri!ical entit' s$all engage in an' b%siness or occ%&ation %n!er t$e &rovisions o( t$e Co!e. Ho,ever since t$e Local 2a4 Co!e !oes not &rovi!e t$e &rescri&tive &erio! (or collection o( local ta4es #rticle 1101 o( t$e Civil Co!e a&&lies. )ai! la, &rovi!es t$at an action %&on an obligation create! b' la, &rescribes ,it$in ten ;15< 'ears (rom t$e time t$e rig$t o( action accr%es. 2$e M%nici&alit' o( =ililla can t$ere(ore en(orce t$e collection o( t$e ta4 on b%siness o( &etitioner ==C !%e (rom 187G to 188G an! NO2 t$e ta4 t$at $a! accr%e! &rior to 187G. =-3M*)3) CON)*D3-3D ,it$ t$e MOD*F*C#2*ON t$at b%siness ta4es accr%ing =-*O- to 187G are not to be &ai! b' ==C ;beca%se t$e same $ave &rescribe!< an! t$at storage (ees are not also to be &ai! b' ==C ;(or t$e storage tan+s are o,ne! b' ==C an! not b' t$e m%nici&alit' an! t$ere(ore cannot be a c$arge (or service b' t$e m%nici&alit'< t$e assaile! D3C*)*ON is $ereb' #FF*-M3D. &loro Cement Corp. v. Gorospe Facts: M%nici&alit' o( L%gait Misamis Oriental (ile! a com&laint (or collection o( man%(act%rer>s an! e4&orter>s ta4es &l%s s%rc$arges against Floro Cement Cor&oration. L%gait base! it on M%nici&al Or!inance No. C ;M%nici&al -even%e Co!e< &asse! &%rs%ant to =D /11A an! Or!inance No. 15. Floro>s !e(ense: not liable since t$e &lainti((>s &o,er to lev' (ees on EMines Mining Cor&orations an! Mineral =ro!%ctsF ,as limite! b' )ec. C/ o( =D 0G1 an! t$at it ,as grante! b' t$e )ecretar' o( #gric%lt%re an! Nat%ral -eso%rces a certi(icate o( ta4 e4em&tion (or a &erio! o( C 'ears ,$ic$ covers all ta4es e4ce&t income ta4. *ss%es: 1. 6ON cement is a mineral &ro!%ct. NO. t$is Co%rt $as consistentl' $el! t$at it is not a mineral &ro!%ct b%t rat$er a man%(act%re! &ro!%ct. 6$ile cement is com&ose! o( 85Y minerals it is not merel' an a!mi4t%re or blen!ing o( ra, materials as lime silica s$ale an! ot$ers. *t is t$e res%lt o( a !e(inite &rocessDt$e cr%s$ing o( minerals grin!ing mi4ing calcining a!!ing o( retar!er or ra, g'&s%m *n s$ort be(ore cement reac$es its saleable (orm t$e minerals $a! alrea!' %n!ergone a c$emical c$ange t$ro%g$ man%(act%ring &rocess. /. 6ON ==C ma' claim e4em&tion (rom &a'ing man%(act%rer>s an! e4&orter>s ta4es. NO. t$e &o,er o( ta4ation is a $ig$ &rerogative o( sovereignt' t$e relin.%is$ment is never &res%me! an! an' re!%ction or !imin%tion t$ereo( ,it$ res&ect to its mo!e or its rate m%st be strictl' constr%e! an! t$e same m%st be coac$e! in clear an! %nmista+able terms in or!er t$at it ma' be a&&lie!. More s&eci(icall' state! t$e general r%le is t$at an' claim (or e4em&tion (rom t$e ta4 stat%te s$o%l! be strictl' constr%e! against t$e ta4&a'er. He ,$o claims an e4em&tion m%st be able to &oint
78

o%t some &rovision o( la, creating t$e rig$tA it cannot be allo,e! to e4ist %&on a mere vag%e im&lication or in(erence. *t m%st be s$o,n in!%bitabl' to e4ist (or ever' &res%m&tion is against it an! a ,ellD(o%n!e! !o%bt is (atal to t$e claim. 2$e &etitioner (aile! to meet t$is re.%irement. #s $el! b' t$e lo,er co%rt t$e e4em&tion mentione! in )ec. C/ o( =.D. No. 0G1 re(ers onl' to mac$ineries e.%i&ment tools (or &ro!%ction etc. as &rovi!e! in )ec. C1 o( t$e same !ecree. 2$e man%(act%re an! t$e e4&ort o( cement !oes not (all %n!er t$e sai! &rovision (or it is not a mineral &ro!%ct. *t is not cement t$at is mine! onl' t$e mineral &ro!%cts com&osing t$e (inis$e! &ro!%ct. F%rt$ermore b' t$e &artiesH o,n sti&%lation o( (acts s%bmitte! be(ore t$e co%rt a .%o it is a!mitte! t$at Floro Cement Cor&oration is engage! in t$e man%(act%ring an! selling incl%!ing e4&orting o( cement. #s s%c$ an! since t$e ta4es so%g$t to be collecte! ,ere levie! on t$ese activities &%rs%ant to )ec. 18 o( =.D. No. /11 Or!inances Nos. C an! 15 ,$ic$ ,ere enacte! &%rs%ant to =.D. No. /11 an! =.D. No. 0/G res&ectivel' &ro&erl' a&&l' to &etitioner Floro Cement Cor&oration. 'uzon an Mapagu v. CA &a'ment t$ro%g$ &ostal mone' or!er. His &a'ment ,as ret%rne! on t$e gro%n! t$at $e (aile! to com&l' ,it$ -es 8. 7%ra!o (ile! a s&ecial civil action (or man!am%s ,? !amages to com&el t$e iss%ance o( t$e ma'or>s &ermit an! license an! a &etition (or !eclarator' 9%!gment against -es 8 an! t$e im&lementing agreement (or being illegal eit$er as a !onation?ta4 meas%re -2C: @&$el! -es 8 an! im&lementing agreement an! !ismisse! claims (or !amages C#: #((irme! vali!it' o( -es 8 an! im&lementing agreement b%t (o%n! Ma'or 2%Bon an! 2reas%rer Ma&ag% to $ave acte! malicio%sl' an! in ba! (ait$ ,$en t$e' !enie! 7%ra!o>s a&&lication. *ss%e: 6ON t$e ta4 meas%re contravenes t$e limitations on t$e ta4ing &o,ers o( LG@s %n!er )ec C o( t$e LGC. )C ,ill not r%le on vali!it' o( -es 8 an! t$e im&lementing agreement beca%se t$e iss%e $as not been raise! as an assigne! error. Ho,ever it observes t$at t$at C# sai! no more t$an -es 8 ,as &asse! b' t$e )angg%niang Ba'an in t$e la,(%l e4ercise o( its legislative &o,ers in &%rs%ance to ;1< #rt. J* )ec. C 1871 Consti Es%b9ect to s%c$ limitation as ma' be &rovi!e! b' la,F an! ;/< #rt. 0 )ec. /8 o( =D /11 ENt$e barrio co%ncil ma' solicit monies materials an! ot$er contrib%tions (rom N &rivate agencies an! in!ivi!%alsF. 2$e )C sai! t$at t$is ,as an oversim&li(ication. 2$e C# (aile! to o((er an' e4&lanation (or its concl%sion nor !oes it !isc%ss its o,n conce&t o( t$e nat%re o( t$e resol%tion. *( -es. 8 is claime! to be a EsolicitationF: *m&lementing agreement ma+es t$e E!onationFobligator' an! a con!ition &rece!ent to t$e iss%ance o( a ma'or>s &ermit. 2$ere(ore it goes against t$e nat%re o( a !onation. *( it is to be consi!ere! as a ta4 or!inance it m%st be s$o,n to $ave been enacte! in accor!ance ,it$ t$e re.%irements o( t$e Local 2a4 Co!e. *t ,o%l! incl%!e t$e $ol!ing o( a &%blic $earing on t$e meas%re its s%bse.%ent a&&roval b' t$e )ecretar' o( Finance in a!!ition to t$e re.%isites (or &%blication o( or!inances in general
Facts: 2$e )angg%niang Ba'an o( Camalani%gan Caga'an a!o&te! -esol%tion No. 8 ,$ic$ solicits a 1Y !onation (rom t$res$er o&erators ,$o a&&l' (or a E&ermit to t$res$F ,it$in t$e m%nici&alit'>s 9%ris!iction to $el& (inance t$e constr%ction o( t$e m%nici&alit'>s )&orts an! N%trition Center. )%c$ 1Y s$all come (rom t$e val%e o( t$e &ala' t$res$e! b' t$em in t$e area. 2o im&lement t$e resol%tion M%nici&al 2reas%rer Ma&ag% &re&are! an agreement to !onate (or signat%re o( all t$res$er?o,ner? o&erators a&&l'ing (or a ma'or>s &ermit. 7%ra!o sent $is agent to t$e 2reas%rer>s o((ice to &a' t$e license (ee (or t$res$er o&erators. Ma&ag% re(%se! to acce&t &a'ment an! re.%ire! 7%ra!o to (irst sec%re a ma'or>s &ermit. Ma'or 2%Bon sai! t$at 7%ra!o s$o%l! (irst com&l' ,it$ -es 8 an! sign t$e agreement be(ore t$e &ermit co%l! be iss%e!. 7%ra!o ignore! t$e re.%irement an! sent $is license (ee
85

*rilon v. Lim Facts: =%rs%ant to )ec 187 LGC1 t$e )ecretar' o( 7%stice $a! on a&&eal to $im o( (o%r oil com&anies an! a ta4&a'er !eclare! Or!inance No. 7780 ot$er,ise +no,n as t$e Manila -even%e Co!e n%ll an! voi! (or nonDcom&liance ,it$ t$e &rescribe! &roce!%re in t$e enactment o( ta4 or!inances an! (or containing certain &rovisions contrar' to la, an! &%blic &olic'. *n Manila>s &etition (or certiorari t$e Manila -2C s%staine! t$e or!inance. *t also !eclare! )ection 187 o( t$e LGC as %nconstit%tional since it vests in t$e 7%stice )ecretar' t$e &o,er o( control over LG@s in violation o( t$e &olic' o( local a%tonom' man!ate! in t$e Constit%tion. 7%stice )ecretar': *t is constit%tional an! t$e &roce!%ral re.%irements (or t$e enactment o( ta4 or!inances as s&eci(ie! in t$e LGC $a! in!ee! not been observe!. *ss%e: 6ON )ec 187 o( t$e LGC is constit%tional. :3). )ection 187 a%t$oriBes t$e )ecretar' o( 7%stice to revie, onl' t$e constit%tionalit' or legalit' o( t$e ta4 or!inance an! i( ,arrante! to revo+e it on eit$er or bot$ o( t$ese gro%n!s. 6$en $e alters or mo!i(ies or sets asi!e a ta4 or!inance $e is not also &ermitte! to s%bstit%te $is o,n 9%!gment (or t$e 9%!gment o( t$e local government t$at enacte! t$e meas%re. )ecretar' Drilon !i! set asi!e t$e Manila -even%e Co!e b%t $e !i! not re&lace it ,it$ $is o,n version o( ,$at t$e Co!e s$o%l! be. He !i! not &rono%nce t$e or!inance %n,ise or %nreasonable as a basis (or its ann%lment. He !i! not sa' t$at in $is 9%!gment it ,as a ba! la,. 6$at $e (o%n! onl' ,as t$at it ,as illegal. #ll $e !i! in revie,ing t$e sai! meas%re ,as !etermine i( t$e &etitioners ,ere &er(orming t$eir (%nctions in accor!ance ,it$ la, t$at is ,it$ t$e &rescribe! &roce!%re (or t$e enactment o( ta4 or!inances an! t$e grant o( &o,ers to t$e cit' government %n!er t$e LGC. #s ,e see it t$at ,as an act not o( control b%t o( mere s%&ervision. #n o((icer in control la's !o,n t$e r%les in t$e !oing o( an act. *( t$e' are not (ollo,e! $e ma' in $is !iscretion or!er t$e act %n!one or reD!one b' $is s%bor!inate or $e ma' even !eci!e to !o it $imsel(. )%&ervision !oes not cover s%c$ a%t$orit'. 2$e s%&ervisor or s%&erinten!ent merel' sees to it t$at t$e r%les are (ollo,e! b%t $e $imsel( !oes not la' !o,n s%c$ r%les nor !oes $e $ave t$e !iscretion to mo!i(' or re&lace t$em. *( t$e r%les are not observe! $e ma' or!er t$e ,or+ !one or reD!one b%t onl' to con(orm to t$e &rescribe! r%les. He ma' not &rescribe $is o,n manner (or t$e !oing o( t$e act. He $as no 9%!gment on t$is matter e4ce&t to see to it t$at t$e r%les are (ollo,e!. *n t$e o&inion o( t$e Co%rt )ecretar' Drilon !i! &recisel' t$is an! no more nor less t$an t$is an! so &er(orme! an act not o( control b%t o( mere s%&ervision. 2a%le v. )antos cite! in t$e !ecision $as no a&&lication $ere beca%se t$e 9%ris!iction claime! b' t$e )ecretar' o( Local Governments over election contests in t$e Mati&%nan ng Mga Baranga' ,as $el! to belong to t$e Commission on 3lections b' constit%tional &rovision. 2$e con(lict ,as over 9%ris!iction not s%&ervision or control. )igni(icantl' a r%le similar to )ection 187 a&&eare! in t$e Local #%tonom' #ct ,$ic$ &rovi!e! in its )ection / as (ollo,s: # ta4 or!inance s$all go into e((ect on t$e (i(teent$ !a' a(ter its &assage %nless t$e or!inance s$all &rovi!e ot$er,ise: =rovi!e! $o,ever 2$at t$e )ecretar' o( Finance s$all $ave a%t$orit' to s%s&en! t$e e((ectivit' o( an' or!inance ,it$in one $%n!re! an! t,ent' !a's a(ter recei&t b'
=roce!%re For #&&roval #n! 3((ectivit' O( 2a4 Or!inances #n! -even%e Meas%resA Man!ator' =%blic Hearings. S 2$e &roce!%re (or a&&roval o( local ta4 or!inances an! reven%e meas%res s$all be in accor!ance ,it$ t$e &rovisions o( t$is Co!e: =rovi!e! 2$at &%blic $earings s$all be con!%cte! (or t$e &%r&ose &rior to t$e enactment t$ereo(A =rovi!e! (%rt$er 2$at an' .%estion on t$e constit%tionalit' or legalit' o( ta4 or!inances or reven%e meas%res ma' be raise! on a&&eal ,it$in t$irt' ;15< !a's (rom t$e e((ectivit' t$ereo( to t$e )ecretar' o( 7%stice ,$o s$all ren!er a !ecision ,it$in si4t' ;G5< !a's (rom t$e !ate o( recei&t o( t$e a&&eal: =rovi!e! $o,ever 2$at s%c$ a&&eal s$all not $ave t$e e((ect o( s%s&en!ing t$e e((ectivit' o( t$e or!inance an! t$e accr%al an! &a'ment o( t$e ta4 (ee or c$arge levie! t$erein: =rovi!e! (inall' 2$at ,it$in t$irt' ;15< !a's a(ter recei&t o( t$e !ecision or t$e la&se o( t$e si4t'D!a' &erio! ,it$o%t t$e )ecretar' o( 7%stice acting %&on t$e a&&eal t$e aggrieve! &art' ma' (ile a&&ro&riate &rocee!ings ,it$ a co%rt o( com&etent 9%ris!iction.
81

$im o( a co&' t$ereo( i( in $is o&inion t$e ta4 or (ee t$erein levie! or im&ose! is %n9%st e4cessive o&&ressive or con(iscator' or ,$en it is contrar' to !eclare! national econom' &olic' an! ,$en t$e sai! )ecretar' e4ercises t$is a%t$orit' t$e e((ectivit' o( s%c$ or!inance s$all be s%s&en!e! eit$er in &art or as a ,$ole (or a &erio! o( t$irt' !a's ,it$in ,$ic$ &erio! t$e local legislative bo!' ma' eit$er mo!i(' t$e ta4 or!inance to meet t$e ob9ections t$ereto or (ile an a&&eal ,it$ a co%rt o( com&etent 9%ris!ictionA ot$er,ise t$e ta4 or!inance or t$e &art or &arts t$ereo( !eclare! s%s&en!e! s$all be consi!ere! as revo+e!. 2$erea(ter t$e local legislative bo!' ma' not reim&ose t$e same ta4 or (ee %ntil s%c$ time as t$e gro%n!s (or t$e s%s&ension t$ereo( s$all $ave cease! to e4ist. 2$at section allo,e! t$e )ecretar' o( Finance to s%s&en! t$e e((ectivit' o( a ta4 or!inance i( in $is o&inion t$e ta4 or (ee levie! ,as %n9%st e4cessive o&&ressive or con(iscator'. Determination o( t$ese (la,s ,o%l! involve t$e e4ercise o( 9%!gment or !iscretion an! not merel' an e4amination o( ,$et$er or not t$e re.%irements or limitations o( t$e la, $a! been observe!A $ence it ,o%l! smac+ o( control rat$er t$an mere s%&ervision. 2$at &o,er ,as never .%estione! be(ore t$is Co%rt b%t at an' rate t$e )ecretar' o( 7%stice is not given t$e same latit%!e %n!er )ection 187. #ll $e is &ermitte! to !o is ascertain t$e constit%tionalit' or legalit' o( t$e ta4 meas%re ,it$o%t t$e rig$t to !eclare t$at in $is o&inion it is %n9%st e4cessive o&&ressive or con(iscator'. He $as no !iscretion on t$is matter. *n (act )ecretar' Drilon set asi!e t$e Manila -even%e Co!e onl' on t,o gro%n!s to ,it$ t$e incl%sion t$erein o( certain %ltra vires &rovisions an! nonD com&liance ,it$ t$e &rescribe! &roce!%re in its enactment. 2$ese gro%n!s a((ecte! t$e legalit' not t$e ,is!om or reasonableness o( t$e ta4 meas%re. 2$e iss%e o( nonDcom&liance ,it$ t$e &rescribe! &roce!%re in t$e enactment o( t$e Manila -even%e Co!e is anot$er matter. *n $is resol%tion )ecretar' Drilon !eclare! t$at t$ere ,ere no ,ritten notices o( &%blic $earings on t$e &ro&ose! Manila -even%e Co!e t$at ,ere sent to intereste! &arties as re.%ire! b' #rt. /7G;b< o( t$e *m&lementing -%les o( t$e LGC nor ,ere co&ies o( t$e &ro&ose! or!inance &%blis$e! in t$ree s%ccessive iss%es o( a ne,s&a&er o( general circ%lation &%rs%ant to #rt. /7G;a<. No min%tes ,ere s%bmitte! to s$o, t$at t$e obligator' &%blic $earings $a! been $el!. Neit$er ,ere co&ies o( t$e meas%re as a&&rove! &oste! in &rominent &laces in t$e cit' in accor!ance ,it$ )ec. C11;a< o( t$e LGC. Finall' t$e Manila -even%e Co!e ,as not translate! into =ili&ino or 2agalog an! !isseminate! among t$e &eo&le (or t$eir in(ormation an! g%i!ance con(ormabl' to )ec. C8;b< o( t$e Co!e. 7%!ge =alattao (o%n! ot$er,ise. He !eclare! t$at all t$e &roce!%ral re.%irements $a! been observe! in t$e enactment o( t$e Manila -even%e Co!e an! t$at t$e Cit' o( Manila $a! not been able to &rove s%c$ com&liance be(ore t$e )ecretar' onl' beca%se $e $a! given it onl' (ive !a's ,it$in ,$ic$ to gat$er an! &resent to $im all t$e evi!ence ;consisting o( /C e4$ibits< later s%bmitte! to t$e trial co%rt. 2o get to t$e bottom o( t$is .%estion t$e Co%rt acce!e! to t$e motion o( t$e res&on!ents an! calle! (or t$e elevation to it o( t$e sai! e4$ibits. 6e $ave care(%ll' e4amine! ever' one o( t$ese e4$ibits an! agree ,it$ t$e trial co%rt t$at t$e &roce!%ral re.%irements $ave in!ee! been observe!. Notices o( t$e &%blic $earings ,ere sent to intereste! &arties as evi!ence! b' 34$ibits GD1 to 17. 2$e min%tes o( t$e $earings are (o%n! in 34$ibits M MD 1 MD/ an! MD1. 34$ibits B an! C s$o, t$at t$e &ro&ose! or!inances ,ere &%blis$e! in t$e Balita an! t$e Manila )tan!ar! on #&ril /1 an! /C 1881 res&ectivel' an! t$e a&&rove! or!inance ,as &%blis$e! in t$e 7%l' 1 0 C 1881 iss%es o( t$e Manila )tan!ar! an! in t$e 7%l' G 1881 iss%e o( Balita as s$o,n b' 34$ibits W WD1 WD/ an! WD1. 2$e onl' e4ce&tions are t$e &osting o( t$e or!inance as a&&rove! b%t t$is omission !oes not a((ect its vali!it' consi!ering t$at its &%blication in t$ree s%ccessive iss%es o( a ne,s&a&er o( general
8/

circ%lation ,ill satis(' !%e &rocess. *t $as also not been s$o,n t$at t$e te4t o( t$e or!inance $as been translate! an! !isseminate! b%t t$is re.%irement a&&lies to t$e a&&roval o( local !evelo&ment &lans an! &%blic investment &rograms o( t$e local government %nit an! not to ta4 or!inances. same co!e. MC*## &ai! t$e ta4 acco%nt %n!er &rotest b%t it (ile! a &etition (or !eclarator' relie( sa'ing t$at t$e &o,ers o( LG@s !o not e4ten! to t$e lev' o( ta4es or (ees o( an' +in! on an instr%mentalit' o( t$e national government. 2C: !ismisse! t$e &etition (or !eclarator' relie(. M- !enie!. MC*##: *t is a GOCC man!ate! to &er(orm (%nctions in t$e same categor' as an instr%mentalit' o( t$e government an! it is an attac$e! agenc' o( t$e DO2C. 2$%s it ma' stan! in t$e same (ooting as an agenc' or instr%mentalit' o( t$e national government. Hence its ta4 e4em&tion &rivilege %n!er its c$arter cannot be consi!ere! as ,it$!ra,n ,it$ t$e &assage o( t$e LGC beca%se )ec 111 s&eci(icall' states t$at t$e ta4ing &o,ers o( LG@s s$all not e4ten! to t$e lev' o( ta4es or (ees or c$arges o( an' +in! on t$e national government its agencies or instr%mentalities. Ceb% $as no &o,er nor a%t$orit' to im&ose realt' ta4es %&on it base! on )ec 111 o( t$e LGC cites Basco v. =#GCO-. *n relation to )ection /10 o( t$e LGC t$at t$e legislat%re meant to e4cl%!e instrumentalities of the national government (rom t$e ta4ing &o,er o( t$e local government %nits. Ceb%: as local a government %nit an! a &olitical s%b!ivision it $as t$e &o,er to im&ose lev' assess an! collect ta4es ,it$in its 9%ris!iction. )%c$ &o,er is g%arantee! b' t$e Constit%tion an! en$ance! (%rt$er b' t$e LGC. 6$ile it ma' be tr%e t$at %n!er its C$arter MC*## ,as e4em&t (rom t$e &a'ment o( realit' ta4es t$is e4em&tion ,as ,it$!ra,n b' )ec. /10 o( t$e LGC. )ec. /10 !oes not !isting%is$ bet,een GOCCs &er(orming governmental an! &%rel' &ro&rietar' (%nctions. *ss%e 1. 6ON MC*## is e4em&t (rom &a'ing ta4es. NO. #s a general r%le t$e &o,er to ta4 is an inci!ent o( sovereignt' an! is %nlimite! in its range ac+no,le!ging in its ver' nat%re no limits so t$at sec%rit' against its ab%se is to be (o%n! onl' in t$e res&onsibilit' o( t$e legislat%re ,$ic$ im&oses t$e ta4 on t$e constit%enc' ,$o are to &a' it. Nevert$eless e((ective limitations t$ereon ma' be im&ose! b' t$e &eo&le t$ro%g$ t$eir Constit%tions. O%r Constit%tion (or instance &rovi!es t$at t$e r%le o( ta4ation s$all be %ni(orm an! e.%itable an! Congress s$all evolve a &rogressive s'stem o( ta4ation. )o &otent in!ee! is t$e &o,er t$at it ,as once o&ine! t$at "t$e &o,er to ta4 involves t$e
Mactan Cebu )nternational Airport Authorit# v. Marcos Facts: MC*## ,as create! b' -# G8C8 ,$ic$ &rovi!e! t$at it be e4em&te! (rom &a'ment o( realt' ta4es. 2$e O((ice o( t$e 2reas%rer o( Ceb% Cit' !eman!e! &a'ment (or realt' ta4es on several &arcels o( lan! belonging to MC*##. MC*## ob9ecte! claiming t$at it is e4em&t (rom &a'ment o( realit' ta4es. *t also sai! t$at as it is an instr%mentalit' o( t$e government &er(orming governmental (%nctions it is e4em&te! as &rovi!e! (or b' )ec. 111 o( t$e LGC. 2$e Cit' insiste! t$at MC*## is not ta4 e4em&t as its e4em&tion $a! been ,it$!ra,n b' )ections 181 an! /10 o( t$e
81

&o,er to !estro'." Keril' ta4ation is a !estr%ctive &o,er ,$ic$ inter(eres ,it$ t$e &ersonal an! &ro&ert' (or t$e s%&&ort o( t$e government. #ccor!ingl' ta4 stat%tes m%st be constr%e! strictl' against t$e government an! liberall' in (avor o( t$e ta4&a'er. B%t since ta4es are ,$at ,e &a' (or civiliBe! societ' or are t$e li(ebloo! o( t$e nation t$e la, (ro,ns against e4em&tions (rom ta4ation an! stat%tes granting ta4 e4em&tions are t$%s constr%e! strictissimi 0uris against t$e ta4&a'ers an! liberall' in (avor o( t$e ta4ing a%t$orit'. # claim o( e4em&tion (rom ta4 &a'ment m%st be clearl' s$o,n an! base! on lang%age in t$e la, too &lain to be mista+en. 3lse,ise state! ta4ation is t$e r%le e4em&tion t$ere(rom is t$e e4ce&tion. Ho,ever i( t$e grantee o( t$e e4em&tion is a &olitical s%b!ivision or instr%mentalit' t$e rigi! r%le o( constr%ction !oes not a&&l' beca%se t$e &ractical e((ect o( t$e e4em&tion is merel' to re!%ce t$e amo%nt o( mone' t$at $as to be $an!le! b' t$e government in t$e co%rse o( its o&erations. 2$e &o,er to ta4 is &rimaril' veste! in t$e CongressA $o,ever in o%r 9%ris!iction it ma' be e4ercise! b' local legislative bo!ies no longer merel' b' virt%e o( a vali! !elegation as be(ore b%t &%rs%ant to !irect a%t$orit' con(erre! b' )ection C #rticle J o( t$e Constit%tion. @n!er t$e latter t$e e4ercise o( t$e &o,er ma' be s%b9ect to s%c$ g%i!elines an! limitations as t$e Congress ma' &rovi!e ,$ic$ $o,ever m%st be consistent ,it$ t$e basic &olic' o( local a%tonom'. 2$ere can be no .%estion t$at %n!er )ection 10 o( -.#. No. G8C8 t$e &etitioner is e4em&t (rom t$e &a'ment o( realt' ta4es im&ose! b' t$e National Government or an' o( its &olitical s%b!ivisions agencies an! instr%mentalities. Nevert$eless since ta4ation is t$e r%le an! e4em&tion t$ere(rom t$e e4ce&tion t$e e4em&tion ma' t$%s be ,it$!ra,n at t$e &leas%re o( t$e ta4ing a%t$orit'. 2$e onl' e4ce&tion to t$is r%le is ,$ere t$e e4em&tion ,as grante! to &rivate &arties base! on material consi!eration o( a m%t%al nat%re ,$ic$ t$en becomes contract%al an! is t$%s covere! b' t$e nonDim&airment cla%se o( t$e Constit%tion. 2$e LGC enacte! &%rs%ant to )ection 1 #rticle J o( t$e constit%tion &rovi!es (or t$e e4ercise b' local government %nits o( t$eir &o,er to ta4 t$e sco&e t$ereo( or its limitations an! t$e e4em&tion (rom ta4ation. )ection 111 o( t$e LGC &rescribes t$e common limitations on t$e ta4ing &o,ers o( local government %nits. 2$e "ta4es (ees or c$arges" re(erre! to are "o( an' +in!" $ence t$e' incl%!e all o( t$ese %nless ot$er,ise &rovi!e! b' t$e LGC. 2$e term "ta4es" is ,ell %n!erstoo! so as to nee! no (%rt$er elaboration es&eciall' in t$e lig$t o( t$e above en%meration. 2$e term "(ees" means c$arges (i4e! b' la, or Or!inance (or t$e reg%lation or ins&ection o( b%siness activit' ,$ile "c$arges" are &ec%niar' liabilities s%c$ as rents or (ees against &erson or &ro&ert'. #mong t$e "ta4es" en%merate! in t$e LGC is real &ro&ert' ta4 ,$ic$ is governe! b' )ection /1/. )ection /10 o( LGC &rovi!es (or t$e e4em&tions (rom &a'ment o( real &ro&ert' ta4es an! ,it$!ra,s &revio%s e4em&tions t$ere(rom grante! to nat%ral an! 9%ri!ical &ersons incl%!ing government o,ne! an! controlle! cor&orations e4ce&t as &rovi!e! t$erein. 2$ese e4em&tions are base! on t$e o,ners$i& c$aracter an! %se o( t$e &ro&ert'. 2$%sA ;a< wnership 3xemptions. 34em&tions (rom real &ro&ert' ta4es on t$e basis o( o,ners$i& are real &ro&erties o,ne! b': ;i< t$e -e&%blic ;ii< a &rovince ;iii< a cit' ;iv< a m%nici&alit' ;v< a baranga' an! ;vi< registere! coo&eratives. ;b< Character 3xemptions. 34em&te! (rom real &ro&ert' ta4es on t$e basis o( t$eir c$aracter are: ;i< c$aritable instit%tions ;ii< $o%ses an! tem&les o( &ra'er an! ;iii< non &ro(it or religio%s cemeteries. ;c< 4sage exemptions. 34em&te! (rom real &ro&ert' ta4es on t$e basis o( t$e act%al !irect an! e4cl%sive use to ,$ic$ t$e' are !evote! are: ;i< all lan!s b%il!ings an! im&rovements ,$ic$ are act%all' !irecte! an! e4cl%sivel' %se! (or religio%s c$aritable or
80

e!%cational &%r&oseA ;ii< all mac$ineries an! e.%i&ment act%all' !irectl' an! e4cl%sivel' %se! or b' local ,ater !istricts or b' governmentDo,ne! or controlle! cor&orations engage! in t$e s%&&l' an! !istrib%tion o( ,ater an!?or generation an! transmission o( electric &o,erA an! ;iii< all mac$iner' an! e.%i&ment %se! (or &oll%tion control an! environmental &rotection. )ection 181 o( t$e LGC is t$e general &rovision on ,it$!ra,al o( ta4 e4em&tion &rivileges. On t$e ot$er $an! t$e LGC a%t$oriBes local government %nits to grant ta4 e4em&tion &rivileges. -ea!ing toget$er )ection 111 /1/ an! /10 o( t$e LGC ,e concl%!e t$at as a general r%le as lai! !o,n in )ection 111 t$e ta4ing &o,ers o( local government %nits cannot e4ten! to t$e lev' o( inter alia "ta4es (ees an! c$arges o( an' +in! o( t$e National Government its agencies an! instr%mentalties an! local government %nits"A $o,ever &%rs%ant to )ection /1/ &rovinces cities m%nici&alities in t$e Metro&olitan Manila #rea ma' im&ose t$e real &ro&ert' ta4 e4ce&t on inter alia "real &ro&ert' o,ne! b' t$e -e&%blic o( t$e =$ili&&ines or an' o( its &olitical s%b!ivisions e4ce&t ,$en t$e bene(icial %se! t$ereo( $as been grante! (or consi!eration or ot$er,ise to a ta4able &erson" as &rovi!e! in item ;a< o( t$e (irst &aragra&$ o( )ection /10. #s to ta4 e4em&tions or incentives grante! to or &resentl' en9o'e! b' nat%ral or 9%ri!ical &ersons incl%!ing governmentDo,ne! an! controlle! cor&orations )ection 181 o( t$e LGC &rescribes t$e general r%le vi'. t$e' are withdrawn %&on t$e e((ectivit' o( t$e LGC e4ce&t %&on t$e e((ectivit' o( t$e LGC except t$ose grante! to local ,ater !istricts coo&eratives !%l' registere! %n!er -.#. No. G818 non stoc+ an! nonD&ro(it $os&itals an! e!%cational instit%tions an! %nless ot$er,ise &rovi!e! in t$e LGC. 2$e latter &roviso co%l! re(er to )ection /10 ,$ic$ en%merates t$e &ro&erties e4em&t (rom real &ro&ert' ta4. B%t t$e last &aragra&$ o( )ection /10 (%rt$er .%ali(ies t$e retention o( t$e e4em&tion in so (ar as t$e real &ro&ert' ta4es are concerne! b' limiting t$e retention onl' to t$ose en%merate! t$ereDinA all ot$ers not incl%!e! in t$e en%meration lost t$e &rivilege %&on t$e e((ectivit' o( t$e LGC. Moreover even as t$e real &ro&ert' is o,ne! b' t$e -e&%blic o( t$e =$ili&&ines or an' o( its &olitical s%b!ivisions covere! b' item ;a< o( t$e (irst &aragra&$ o( )ection /10 t$e e4em&tion is ,it$!ra,n i( t$e bene(icial %se o( s%c$ &ro&ert' $as been grante! to ta4able &erson (or consi!eration or ot$er,ise. )ince t$e last &aragra&$ o( )ection /10 %ne.%ivocall' ,it$!re, %&on t$e e((ectivit' o( t$e LGC e4em&tions (rom real &ro&ert' ta4es grante! to nat%ral or 9%ri!ical &ersons incl%!ing governmentDo,ne! or controlle! cor&orations e4ce&t as &rovi!e! in t$e sai! section an! t$e &etitioner is %n!o%bte!l' a governmentD o,ne! cor&oration it necessaril' (ollo,s t$at its e4em&tion (rom s%c$ ta4 grante! it in )ection 10 o( its c$arter -.#. No. G8C8 $as been ,it$!ra,n. #n' claim to t$e contrar' can onl' be 9%sti(ie! i( t$e &etitioner can see+ re(%ge %n!er an' o( t$e e4ce&tions &rovi!e! in )ection /10 b%t not %n!er )ection 111 as it no, asserts since as s$o,n above t$e sai! section is .%ali(ie! b' )ection /1/ an! /10. *n s$ort t$e &etitioner can no longer invo+e t$e general r%le in )ection 111 t$at t$e ta4ing &o,ers o( t$e local government %nits cannot e4ten! to t$e lev' o(: ;o< ta4es (ees or c$arges o( an' +in! on t$e National Government its agencies or instr%mentalities an! local government %nits. *n lig$t o( t$e &etitionerHs t$eor' t$at it is an "instr%mentalit' o( t$e Government" it co%l! onl' be ,it$in be (irst item o( t$e (irst &aragra&$ o( t$e section b' e4&an!ing t$e sco&e o( t$e terms -e&%blic o( t$e =$ili&&ines" to embrace . . . . . . "instr%mentalities" an! "agencies" or e4&e!ienc' ,e .%ote: ;a< real &ro&ert' o,ne! b' t$e -e&%blic o( t$e =$ili&&ines or an' o( t$e =$ili&&ines or an' o( its &olitical s%b!ivisions e4ce&t ,$en t$e bene(icial %se t$ereo( $as been grante! (or consi!eration or ot$er,ise to a ta4able &erson. 2$is vie, !oes not
8C

&ers%a!e %s. *n t$e (irst &lace t$e &etitionerHs claim t$at it is an instr%mentalit' o( t$e Government is base! on )ection 111;o< ,$ic$ e4&ressl' mentions t$e ,or! "instr%mentalities"A an! in t$e secon! &lace it (ails to consi!er t$e (act t$at t$e legislat%re %se! t$e &$rase "National Government its agencies an! instr%mentalities" "in )ection 111;o< b%t onl' t$e &$rase "-e&%blic o( t$e =$ili&&ines or an' o( its &olitical s%b!ivision "in )ection /10;a<. 2$e terms "-e&%blic o( t$e =$ili&&ines" an! "National Government" are not interc$angeable. 2$e (ormer is boar!er an! s'non'mo%s ,it$ "Government o( t$e -e&%blic o( t$e =$ili&&ines" ,$ic$ t$e #!ministrative Co!e o( t$e 1887 !e(ines as t$e "cor&orate governmental entit' t$o%g$ ,$ic$ t$e (%nctions o( t$e government are e4ercise! t$ro%g$ at t$e =$ili&&ines incl%!ing saves as t$e contrar' a&&ears (rom t$e conte4t t$e vario%s arms t$ro%g$ ,$ic$ &olitical a%t$orit' is ma!e e((ective in t$e =$ili&&ines ,$et$er &ertaining to t$e a%tonomo%s reason t$e &rovincial cit' m%nici&al or baranga' s%b!ivision or ot$er (orms o( local government." 2$ese a%tonomo%s regions &rovincial cit' m%nici&al or baranga' s%b!ivisions" are t$e &olitical s%b!ivision. On t$e ot$er $an! "National Government" re(ers "to t$e entire mac$iner' o( t$e central government as !isting%is$e! (rom t$e !i((erent (orms o( local Governments." 2$e National Government t$en is com&ose! o( t$e t$ree great !e&artments t$e e4ec%tive t$e legislative an! t$e 9%!icial. #n "agenc'" o( t$e Government re(ers to "an' o( t$e vario%s %nits o( t$e Government incl%!ing a !e&artment b%rea% o((ice instr%mentalit' or governmentDo,ne! or controlle! cor&oration or a local government or a !istinct %nit t$ereinA" ,$ile an "instr%mentalit'" re(ers to "an' agenc' o( t$e National Government not integrate! ,it$in t$e !e&artment (rame,or+ veste! ,it$ s&ecial (%nctions or 9%ris!iction b' la, en!o,e! ,it$ some i( not all cor&orate &o,ers a!ministering s&ecial (%n!s an! en9o'ing o&erational a%tonom'A %s%all' t$ro%g$ a c$arter. 2$is term incl%!es reg%lator' agencies c$artere! instit%tions an! governmentD o,ne! an! controlle! cor&orations". *( )ection /10;a< inten!e! to e4ten! t$e e4ce&tion t$erein to t$e ,it$!ra,al o( t$e e4em&tion (rom &a'ment o( real &ro&ert' ta4es %n!er t$e last sentence o( t$e sai! section to t$e agencies an! instr%mentalities o( t$e National Government mentione! in )ection 111;o< t$en it s$o%l! $ave restate! t$e ,or!ing o( t$e latter. :et it !i! not Moreover t$at Congress !i! not ,is$ to e4&an! t$e sco&e o( t$e e4em&tion in )ection /10;a< to incl%!e real &ro&ert' o,ne! b' ot$er instr%mentalities or agencies o( t$e government incl%!ing governmentD o,ne! an! controlle! cor&orations is (%rt$er borne o%t b' t$e (act t$at t$e so%rce o( t$is e4em&tion is )ection 05;a< o( =.D. No. G0G ot$er,ise +no,n as t$e -eal =ro&ert' 2a4 Co!e ,$ic$ rea!s: )ec 05. 34em&tion (rom -eal =ro&ert' 2a4. S 2$e e4em&tion s$all be as (ollo,s: ;a< -eal &ro&ert' o,ne! b' t$e -e&%blic o( t$e =$ili&&ines or an' o( its &olitical s%b!ivisions an! an' governmentDo,ne! or controlle! cor&orations so e4em&t b' is c$arter: #rovided% however t$at t$is e4em&tion s$all not a&&l' to real &ro&ert' o( t$e above mentione! entities t$e bene(icial %se o( ,$ic$ $as been grante! (or consi!eration or ot$er,ise to a ta4able &erson. Note t$at as a re&ro!%ce! in )ection /10;a< t$e &$rase "an! an' governmentDo,ne! or controlle! cor&oration so e4em&t b' its c$arter" ,as e4cl%!e!. 2$e 9%sti(ication (or t$is restricte! e4em&tion in )ection /10;a< seems obvio%s: to limit (%rt$er ta4 e4em&tion &rivileges es&eciall' in lig$t o( t$e general &rovision on ,it$!ra,al o( e4em&tion (rom &a'ment o( real &ro&ert' ta4es in t$e last &aragra&$ o( &ro&ert' ta4es in t$e last &aragra&$ o( )ection /10. 2$ese &olic' consi!erations are consistent ,it$ t$e )tate &olic' to ens%re a%tonom' to local governments 44 an! t$e ob9ective o( t$e LGC t$at t$e' en9o' gen%ine an! meaning(%l local a%tonom' to enable t$em to attain t$eir (%llest !evelo&ment as sel(Dreliant comm%nities an! ma+e t$em e((ective
8G

&artners in t$e attainment o( national goals. 2$e &o,er to ta4 is t$e most e((ective instr%ment to raise nee!e! reven%es to (inance an! s%&&ort m'ria! activities o( local government %nits (or t$e !eliver' o( basic services essential to t$e &romotion o( t$e general ,el(are an! t$e en$ancement o( &eace &rogress an! &ros&erit' o( t$e &eo&le. *t ma' also be relevant to recall t$at t$e original reasons (or t$e ,it$!ra,al o( ta4 e4em&tion &rivileges grante! to governmentDo,ne! an! controlle! cor&orations an! all ot$er %nits o( government ,ere t$at s%c$ &rivilege res%lte! in serio%s ta4 base erosion an! !istortions in t$e ta4 treatment o( similarl' sit%ate! enter&rises an! t$ere ,as a nee! (or t$is entities to s$are in t$e re.%irements o( t$e !evelo&ment (iscal or ot$er,ise b' &a'ing t$e ta4es an! ot$er c$arges !%e (rom t$em. (ecretar# o! &inance v. )lar e Facts: Cabal%na (aile! to &a' lan! ta4es. # brea+!o,n o( t$e com&%tation o( t$e !elin.%ent ta4es an! &enalties on $is lots an! resi!ential $o%se as re(lecte! in t$e vario%s recei&ts iss%e! b' t$e Cit' 2reas%rerHs O((ice o( *loilo Cit' s$o,s t$at more t$an t,ent'D (o%r &ercent ;/0Y< o( t$e !elin.%ent ta4es ,ere c$arge! an! collecte! b' ,a' o( &enalties. Cabal%na &ai! $is lan! ta4es an! t$e corres&on!ing recei&ts ,ere iss%e! to $im b' t$e Cit' 2reas%rerHs O((ice ,it$ t$e notation "&ai! %n!er &rotest." Cabal%na (ile! a (ormal letter o( &rotest ,it$ t$e Cit' 2reas%rer o( *loilo Cit' ,$erein $e conten!s t$at t$e Cit' 2reas%rerHs com&%tation o( &enalties ,as erroneo%s since t$e rate o( &enalt' a&&lie! e4cee!e! t,ent'D(o%r &ercent ;/0Y< in contravention o( )ection GG o( =.D. No. 0G0 ot$er,ise +no,n as t$e -eal =ro&ert' 2a4 Co!e as amen!e!. *n res&onse $o,ever #ssistant Cit' 2reas%rer 2%lio (or an! in be$al( o( t$e Cit' 2reas%rer o( *loilo t%rne! !o,n &rivate res&on!entHs &rotest citing )ec. 0;c< o( 7oint #ssessment -eg%lations No. 1D8C an! Local 2reas%r' -eg%lations No. /D8C o( t$e t$en Ministr' ;no, De&artment< o( Finance. ,$ic$ rea!s: )ec. 0. Com&%tation o( =enalties on Delin.%ent -eal =ro&ert' 2a4es. X ;a< @nless con!one! ,$oll' or &artiall' in a !%l' a&&rove! resol%tion o( t$e Local )angg%nian !elin.%ent real &ro&ert' ta4es s$all be s%b9ect to &enalt' at t$e rate o( t,o &er cent ;/Y< (or ever' mont$ o( !elin.%enc' &rovi!e! t$at t$e total &enalt' (or one ta4 'ear s$all not e4cee! t,ent'D(o%r &ercent ;/0Y<. ;b< Fail%re to &a' on time at least t$e (irst .%arter installment o( t$e real &ro&ert' ta4 s$all constit%te a ,aiver on t$e &art o( t$e &ro&ert' o,ner or a!ministrator to avail o( t$e &rivilege grante! b' la, (or $im to &a' ,it$o%t &enalt' $is ann%al realt' ta4 obligation in (o%r ;0< e.%al installment on or be(ore t$e en! o( ever' .%arter o( t$e ta4 'ear. #ccor!ingl' i( t$e &ortion o( t$e real &ro&ert' ta4 !%e (or t$e (irst .%arter o( ta4 'ear is not &ai! on or be(ore t$e t$irt'D(irst !a' o( Marc$ o( t$e same 'ear t$e &enalt' s$all be rec+one! (rom t$e (irst !a' o( 7an%ar' at t$e rate o( t,o &er cent ;/Y< (or ever' mont$ o( !elin.%enc' on t$e basis o( t$e total amo%nt !%e (or t$e entire 'ear an! not onl' on t$e amo%nt !%e (or t$e sai! (irst .%arter o( t$e ta4 'ear. ;c< 2$e &enalt' o( t,o &ercent ;/Y< &er mont$ o( !elin.%enc' or t,ent'D(o%r &ercent ;/0Y< &er ann%m as t$e case ma' be s$all contin%e to be im&ose! on t$e %n&ai! ta4 (rom t$e time t$e !elin.%enc' ,as inc%rre! %& to t$e time t$at it is &ai! (or in (%ll. Cabal%na (ile! a =etition (or Declarator' -elie( ,it$ Damages on 5G 7%l' 1881 be(ore t$e sala o( res&on!ent 7%!ge assailing 7oint #ssessment -eg%lations No. 1D8C an! Local 2reas%r' -eg%lations No. /D8C ,$ic$ accor!ing to $im (lo%te! )ection GG o( =.D. No. 0G0 ,$ic$ (i4e! t$e ma4im%m &enalt' (or !elin.%enc' in t$e &a'ment o( real estate ta4es at /0Y o( t$e !elin.%ent ta4. -2C: )ection 0;c< o( 7oint #ssessment -eg%lation No. 1D8C an! Local 2reas%r' -eg%lation No. /D8C n%ll an! voi!. =enalt' t$at s$o%l! be im&ose! (or !elin.%enc' in t$e &a'ment o( real &ro&ert' ta4es s$o%l! be t,o &er cent%m on t$e amo%nt o( t$e !elin.%ent ta4 (or eac$ mont$ o( !elin.%enc' or (raction t$ereo( %ntil t$e !elin.%ent ta4 is (%ll' &ai! b%t in no case s$all t$e total &enalt' e4cee! t,ent'D(o%r &er cent%m o( t$e !elin.%ent ta4 as &rovi!e! (or in )ection GG o( =.D. 0G0 ot$er,ise +no,n as t$e -eal =ro&ert' 2a4 Co!e. *ss%e: 6ON 7oint #ssessment -eg%lations No. 1D8C an! Local 2reas%r' -eg%lations No. /D8C are vali!. NO. 2$e s%b9ect -eg%lations m%st be str%c+ !o,n (or being re&%gnant to )ection GG o( =.D. No. 0G0 or t$e -eal =ro&ert' 2a4 Co!e ,$ic$ &rovi!es: E2$at in no case s$all t$e total &enalt' e4cee! t,ent'D(o%r &er cent%m o( t$e !elin.%ent ta4. 2$e rate o( &enalt' (or
87

ta4 !elin.%enc' (i4e! $erein s$all be %ni(orml' a&&lie! in all &rovinces an! cities.F @&on t$e ot$er $an! )ection 0;c< o( t$e c$allenge! 7oint #ssessment -eg%lations No. 1D8C an! Local 2reas%r' -eg%lations No. /D8C iss%e! b' res&on!ent )ecretar' ;(ormerl' Minister< o( Finance &rovi!es t$at "t$e &enalt' o( t,o &ercent ;/Y< &er mont$ o( !elin.%enc' or t,ent'D(o%r &ercent ;/0Y< &er ann%m as t$e case ma' be s$all contin%e to be im&ose! on t$e %n&ai! ta4 (rom t$e time t$e !elin.%enc' ,as inc%rre! %& to t$e time t$at t$e !elin.%enc' is &ai! (or in (%ll." #s a!e&tl' observe! b' t$e trial co%rt t$e &enalt' im&ose! %n!er t$e assaile! -eg%lations $as no limit inasm%c$ as t$e /0Y &enalt' &er ann%m s$all be contin%o%sl' im&ose! on t$e %n&ai! ta4 %ntil it is &ai! (or in (%ll %nli+e t$at im&ose! %n!er )ection GG o( t$e -eal =ro&ert' 2a4 Co!e ,$ere t$e total &enalt' is limite! onl' to t,ent'D(o%r &ercent o( t$e !elin.%ent ta4. Q 2$e secretar' anc$ors $is claim on 3O71 "2$e Minister o( Finance s$all &rom%lgate t$e necessar' r%les an! reg%lations to im&lement t$is 34ec%tive Or!er." 3.O. No. 71 !i! not to%c$ at all on t$e to&ic o( amen!ment o( rates o( !elin.%ent ta4es or t$e amen!ment o( rates o( &enalt' on !elin.%ent ta4es. Neit$er !i! 3.O. No. 1518 !irectl' or in!irectl' vest %&on t$e De&artment o( Finance t$e rig$t to (i!!le ,it$ t$e rates o( &enalt' to be assesse! on !elin.%enc' ta4es as containe! in t$e -eal =ro&ert' 2a4 Co!e. Des&ite t$e &rom%lgation o( 3.O. No. 71 =.D. No. 0G0 in general an! )ection GG in &artic%lar remaine! to be goo! la,. NO re&eal b' im&lication itcabO #ss%ming arg%menti t$at 3.O. No. 71 $as a%t$oriBe! t$e &etitioner to iss%e t$e ob9ecte! -eg%lations s%c$ con(erment o( &o,ers is voi! (or being re&%gnant to t$e ,ellD encr%ste! !octrine in &olitical la, t$at t$e &o,er o( ta4ation is generall' veste! ,it$ t$e legislat%re. 2$e &o,er !elegate! to t$e e4ec%tive branc$ in t$is case t$e Ministr' o( Finance to la' !o,n im&lementing r%les m%st nevert$eless be germane to t$e general la, it see+s to a&&l'. 2$e im&lementing r%les cannot a!! to or !etract (rom t$e &rovisions o( t$e la, it is !esigne! to im&lement. Q t$e (act t$at &rivate res&on!ent Cabal%na ,as res&onsible (or t$e iss%ance an! im&lementation o( -egional O((ice Memoran!%m Circ%lar No. 50D88 ,$ic$ im&lemente! 7oint #ssessment -eg%lations No. 1D8C an! Local 2reas%r' -eg%lations No. /D8C !oes not &%t $im in esto&&el (rom see+ing t$e n%lli(ication o( sai! -eg%lations at t$is &oint.
Benguet Corporation v. Central Boar Appeals
o! Assessment
Facts: BC see+s to ann%l an! set asi!e t$e Decision o( t$e CB## o( Ma' /8 1881 as ,ell as t$e -esol%tion o( 7%l' 1 1881 !en'ing its motion (or reconsi!eration ,$ic$ a((irme! t$e !ecision o( res&on!ent Local Boar! o( #ssessment #&&eals o( t$e =rovince o( Beng%et !eclaring as vali! t$e ta4 assessments ma!e b' t$e M%nici&al #ssessor o( *togon Beng%et on t$e b%n+$o%ses o( &etitioner occ%&ie! as !,elling b' its ran+ an! (ile em&lo'ees base! on 2a4 Declarations Nos. 8071 an! 150C0. 2$e =rovincial #ssessor o( Beng%et t$ro%g$ t$e M%nici&al #ssessor o( *togon assesse! real &ro&ert' ta4 on t$e b%n+$o%ses o( &etitioner Beng%et Cor&oration occ%&ie! (or resi!ential &%r&oses b' its ran+ an! (ile em&lo'ees %n!er 2a4 Declarations Nos. 8071 ;e((ective 188C< an! 150C0 ;e((ective 188G<. #ccor!ing to t$e =rovincial #ssessor t$e ta4 e4em&tion o( b%n+$o%ses %n!er )ec. 1 ;a< =.D. 70C/ ;LiberaliBing t$e Financing an! Cre!it 2erms (or Lo, Cost Ho%sing =ro9ects o( Domestic Cor&orations an! =artners$i&s< ,as ,it$!ra,n b' =.D. 18CC1 ;6it$!ra,ing )%b9ect to Certain Con!itions t$e D%t' an! 2a4 =rivileges Grante! to =rivate B%siness 3nter&rises an!?or =ersons 3ngage! in #n' 3conomic #ctivit' an! Ot$er =%r&oses<. =etitioner a&&eale! t$e assessment on 2a4
")ection 1. =%rs%ant to t$e above incentive s%c$ !omestic cor&orations an! &artners$i&s s$all en9o' ta4 e4em&tion on: ;a< real estate ta4es on t$e im&rovements ,$ic$ ,ill be %se! e4cl%sivel' (or $o%sing t$eir em&lo'ees an! ,or+ers . . ."
")ection 1. 2$e &rovisions o( an' s&ecial or general la, to t$e contrar' not,it$stan!ing all e4em&tions (rom or an' &re(erential treatment in t$e &a'ment o( !%ties ta4es (ees im&osts an! ot$er c$arges $ereto(ore grante! to &rivate b%siness enter&rises an!?or &ersons engage! in an' economic activit' are $ereb' ,it$!ra,n e4ce&t t$ose en9o'e! b' t$e (ollo,ing: . . . ;e< 2$ose t$at ,ill be a&&rove! b' t$e =resi!ent o( t$e =$ili&&ines %&on t$e recommen!ation o( t$e Minister o( Finance "
88

Declarations Nos. 8071 an! 150C0 to t$e Local Boar! o( #ssessment #&&eals ;LB##< o( t$e =rovince o( Beng%et !oc+ete! as LB## Cases Nos. 0/ an! 01 res&ectivel'. Bot$ ,ere $ear! 9ointl'. Mean,$ile t$e &arties agree! to s%s&en! $earings in LB## Cases Nos. 0/ an! 01 to a,ait t$e o%tcome o( anot$er case LB## Case No. 01 covering 2a4 Declaration No. 1C10 ;e((ective 1880< ,$ic$ involve! t$e same &arties an! iss%e %ntil t$e a&&eal ,as !eci!e! b' t$e Central Boar! o( #ssessment #&&eals ;CB##<. On 7%l' 1C 188G CB## $an!e! !o,n its !ecision in LB## Case No. 01 $ol!ing t$at t$e b%il!ings o( &etitioner %se! as !,ellings b' its ran+ an! (ile em&lo'ees ,ere e4em&t (rom real &ro&ert' ta4 &%rs%ant to =.D. 70C. 2$erea(ter t$e &rocee!ings in LB## Cases Nos. 0/ an! 01 &rocee!e! a(ter ,$ic$ a !ecision ,as ren!ere! a((irming t$e ta4abilit' o( s%b9ect &ro&ert' o( &etitioner. On a&&eal CB## s%staine! t$e !ecision $ol!ing t$at t$e realt' ta4 e4em&tion %n!er =.D. 70C ,as ,it$!ra,n b' =.D. 18CC an! 3.O. 81 so t$at &etitioner s$o%l! $ave a&&lie! (or restoration o( t$e e4em&tion ,it$ t$e Fiscal *ncentives -evie, Boar! ;F*-B< 2$e !ecision o( CB## clari(ie! t$at Case No. 01 ,as !i((erent beca%se it ,as e((ective &rior to 188C $ence ,as not covere! b' =.D. 18CC nor b' 3.O. 81. =etitioner move! (or reconsi!eration b%t ,as !enie! ,it$ CB## $ol!ing t$at &etitionerHs "classi(ication" o( =.D. 70C is %navailing beca%se =.D. 18CC an! 3.O. 81 !o not !iscriminate against t$e soD calle! "social stat%tes". Hence t$is &etition. )C: s$o%l! be rea! in connection ,it$ Ministr' Or!er No. 18D80 )ec. 1 ;!< o( t$e t$en Ministr' o( Finance ,$ic$ too+ e((ect October 1C 1880 states: ")ection 1. 2$e ,it$!ra,al o( e4em&tions (rom or an' &re(erential treatment in t$e &a'ment o( !%ties ta4es (ees im&osts an! ot$er c$arges as &rovi!e! (or %n!er =resi!ential Decree No. 18CC !oes not a&&l' to e4em&tions or &re(erential treatment embo!ie! in t$e (ollo,ing la,s: . . . ;!< 2$e -eal =ro&ert' 2a4 Co!e . . ." 34ec%tive Or!er No. 81 &rom%lgate! December 17 188G is also to t$e same e((ect. Bot$ =.D. 18CC an! F.O. 81 o&erate as ,$olesale ,it$!ra,al o( ta4 incentives grante! to &rivate entities so t$at t$e government ma' reDe4amine e4isting ta4 e4em&tions an! restore t$ro%g$ t$e "revie, mec$anism" o( t$e Fiscal *ncentives -evie, Boar! onl' t$ose t$at are consistent ,it$ !eclare! economic &olic'. 2$%s ,ise t$e c$ie( reven%e so%rce o( t$e government ,ill not be greatl' i( not %nnecessaril' ero!e! since ta4 e4em&tions t$at ,ere grante! on &iecemeal basis an! ,$ic$ $ave lost relevance to e4isting &rograms are eliminate!. *ss%es: 1. 6ON res&on!ent #ssessors ma' vali!l' assess real &ro&ert' ta4 on t$e &ro&erties o( &etitioner consi!ering t$e &roscri&tion in 2$e Local 2a4 Co!e ;=.D /11< an! t$e Mineral -eso%rces Develo&ment Decree o( 1870 ;=.D. 0G1< against im&osition o( ta4es on mines b' local governments. :3). On t$e (irst iss%e &etitioner conten!s t$at local government %nits are ,it$o%t an' a%t$orit' to lev' realt' ta4es on mines &%rs%ant to )ec. C/ o( =.D. 0G1 ,$ic$ states: )ec. C/. =o,er to Lev' 2a4es on Mines Mining O&erations an! Mineral =ro!%cts. #n' la, to t$e contrar' not,it$stan!ing no &rovince cit' m%nici&alit' barrio or m%nici&al !istrict s$all lev' an! collect ta4es (ees rentals ro'alties or c$arges o( an' +in! ,$atsoever on mines mining claims mineral &ro!%cts or an' o&eration &rocess or activit' connecte! t$ere,it$ an! )ec. C ;m< o( 2$e Local 2a4 Co!e as amen!e! b' =.D. 0/G ;reiterate! in )ecs. 17 U!V an! // UcV same Co!e< ,$ic$ &rovi!es: )ec. C. Common limitations on t$e ta4ing &o,ers o( local governments. 2$e e4ercise o( t$e ta4ing &o,ers o( &rovinces cities m%nici&alities an! barrios s$all not e4ten! to t$e im&osition o( t$e (ollo,ing: . . . ;m< 2a4es on mines mining o&erationsA an! minerals mineral &ro!%cts an! t$eir b'D&ro!%cts ,$en sol! !omesticall' b' t$e o&erator. 2$e )olicitor General observes t$at t$e &etitioner is esto&&e! (rom raising t$e .%estion o( lac+ o( a%t$orit' to iss%e t$e c$allenge! assessments inasm%c$ as it ,as never raise! be(ore $ence not &asse! %&on b' t$e m%nici&al an! &rovincial assessors LB## an! CB##. 2$is observation is ,ell ta+en. 2$e r%le t$at t$e iss%e o( 9%ris!iction over s%b9ect matter ma' be raise! an'time even !%ring a&&eal $as been .%ali(ie! ,$ere its a&&lication res%lts in moc+er' o( t$e tenets o( (air &la' as in t$is case ,$en t$e iss%e co%l! $ave been !is&ose! o( earlier an! more a%t$oritativel' b' an' o( t$e res&on!ents ,$o are s%&&ose! to be e4&erts in t$e (iel! o( realt' ta4 assessment. #s 6e $el! in )%areB v. Co%rt o( #&&eals: . . . *t is settle! t$at an'
88

!ecision ren!ere!. ,it$o%t 9%ris!iction is a total n%llit' an! ma' be str%c+ !o,n at an' time even on a&&eal be(ore t$is Co%rt. 2$e onl' e4ce&tion is ,$ere t$e &art' raising t$e iss%e is barre! b' esto&&el. 2i9am v. )ibong$ano': 6$ile &etitioner co%l! $ave &revente! t$e trial co%rt (rom e4ercising 9%ris!iction over t$e case b' seasonabl' ta+ing e4ce&tion t$ereto t$e' instea! involve! t$e ver' same 9%ris!iction b' (iling an ans,er an! see+ing a((irmative relie( (rom it. 6$at is more t$e' &artici&ate! in t$e trial o( t$e case b' crossD e4amining res&on!ent. @&on t$e &remises &etitioner cannot no, be allo,e! belate!l' to a!o&t an inconsistent &ost%re b' attac+ing t$e 9%ris!iction o( t$e co%rt to ,$ic$ t$e' $a! s%bmitte! t$emselves vol%ntaril' #g%inal!o *n!%stries Cor&oration v. Commissioner o( *nternal -even%e an! t$e Co%rt o( 2a4 #&&eals:"2o allo, a litigant to ass%me a !i((erent &ost%re ,$en $e comes be(ore t$e co%rt an! c$allenge t$e &osition $e $a! acce&te! at t$e a!ministrative level ,o%l! be to sanction a &roce!%re ,$ereb' t$e co%rt ,$ic$ is s%&&ose! to revie, a!ministrative !eterminations ,o%l! not revie, b%t !etermine an! !eci!e (or t$e (irst time a .%estion not raise! at t$e a!ministrative (or%m. 2$is cannot be &ermitte! (or t$e same reason t$at %n!erlies t$e re.%irement o( &rior e4$a%stion o( a!ministrative reme!ies to give a!ministrative a%t$orities t$e &rior o&&ort%nit' to !eci!e controversies ,it$in its com&etence an! in m%c$ t$e same ,a' t$at on t$e 9%!icial level iss%es not raise! in t$e lo,er co%rt cannot be raise! (or t$e (irst time on a&&eal." Besi!es t$e s&ecial civil action o( certiorari is available to &ass %&on t$e !eterminations o( a!ministrative bo!ies ,$ere &atent !enial o( !%e &rocess is allege! as a conse.%ence o( grave ab%se o( !iscretion or lac+ o( 9%ris!iction or .%estion o( la, is raise! an! no a&&eal is available. *n t$is case &etitioner ma' not com&lain o( !enial o( !%e &rocess since it $a! eno%g$ o&&ort%nit' b%t o&te! not to raise t$e iss%e o( 9%ris!iction in an' o( t$e a!ministrative bo!ies to ,$ic$ t$e case ma' $ave been bro%g$t. BC: realt' ta4es are local ta4es beca%se t$e' are levie! b' local government %nitsA citing )ec. 18 o( =.D. 0G0 ,$ic$ &rovi!es: )ec. 18. -ates o( Lev'. 2$e &rovincial cit' or m%nici&al boar! or co%ncil s$all (i4 a %ni(orm rate o( real &ro&ert' ta4 a&&licable to t$eir res&ective localities . . . 6$ile local government %nits are c$arge! ,it$ (i4ing t$e rate o( real &ro&ert' ta4es it !oes not necessaril' (ollo, (rom t$at a%t$orit' t$e !etermination o( ,$et$er or not to im&ose t$e ta4. *n (act local governments $ave no alternative b%t to collect ta4es as man!ate! in )ec. 18 o( t$e -eal =ro&ert' 2a4 Co!e ,$ic$ states: )ec. 18. *nci!ence o( -eal =ro&ert' 2a4. 2$ere s$all be levie! assesse! an! collecte! in all &rovinces cities an! m%nici&alities an ann%al a! valorem ta4 on real &ro&ert' s%c$ as lan! b%il!ings mac$iner' an! ot$er im&rovements a((i4e! or attac$e! to real &ro&ert' not $ereina(ter s&eci(icall' e4em&te!." *t is t$%s clear (rom t$e (oregoing t$at it is t$e national government e4&ressing itsel( t$ro%g$ t$e legislative branc$ t$at levies t$e real &ro&ert' ta4. Conse.%entl' ,$en local governments are re.%ire! to (i4 t$e rates t$e' are merel' constit%te! as agents o( t$e national government in t$e en(orcement o( t$e -eal =ro&ert' 2a4 Co!e. 2$e !elegation o( ta4ing &o,er is not even involve! $ere beca%se t$e national government $as alrea!' im&ose! realt' ta4 in )ec. 18 aboveD.%ote! leaving onl' t$e en(orcement to be !one b' local governments. 2$e c$allenge o( &etitioner against t$e a&&licabilit' o( Meralco )ec%rities *n!%strial Cor&oration v. Central Boar! o( #ssessment #&&eals et al. 1 is %navailing absent an' cogent reason to overt%rn t$e same. 2$%s "Meralco )ec%rities arg%es t$at t$e realt' ta4 is a local ta4 or lev' an! not a ta4 o( general a&&lication. 2$is arg%ment is %ntenable beca%se t$e realt' ta4 $as al,a's been im&ose! b'
85

t$e la,ma+ing bo!' an! later b' t$e =resi!ent o( t$e =$ili&&ines in t$e e4ercise o( $is la,ma+ing &o,ers as s$o,n in )ections 10/ et se.. o( t$e -evise! #!ministrative Co!e #ct No. 188C Common,ealt$ #ct No 075 an! =resi!ential Decree No. 0G0. "2$e realt' ta4 is en(orce! t$ro%g$o%t t$e =$ili&&ines an! not merel' in a &artic%lar m%nici&alit' or cit' b%t t$e &rocee!s o( t$e ta4 accr%e to t$e &rovince cit' m%nici&alit' an! barrio ,$ere t$e realt' ta4e! is sit%ate! ;)ec. 8G =.D. No. 0G0<. *n contrast a local ta4 is im&ose! b' t$e m%nici&al or cit' co%ncil b' virt%e o( t$e Local 2a4 Co!e =resi!ential Decree No. /11 ,$ic$ too+ e((ect on 7%l' 1 1871 ;G8 O.G. G187<." Conse.%entl' t$e &rovisions o( )ec. C/ o( t$e Mineral -eso%rces Develo&ment Decree o( 1870 ;=.D. 0G1< an! )ecs. C ;m< 17 ;!< an! // ;c< o( 2$e Local 2a4 Co!e ;=.D. /11< cite! b' &etitioner are mere limitations on t$e ta4ing &o,er o( local government %nits t$e' are not &ertinent to t$e iss%e be(ore @s an! t$ere(ore cannot an! s$o%l! not a((ect t$e im&osition o( real &ro&ert' ta4 b' t$e national government. /. 6ON t$e real ta4 e4em&tion grante! %n!er =.D. 70C ;&rom%lgate! 7%l' 1C 187C< ,as ,it$!ra,n b' =.D. 18CC ;too+ e((ect October 1C 1880< an! 3.O. 81. :3). Co%rt $el! t$at it $as no reco%rse b%t to a&&l' t$e e4&ress &rovision o( =.D. No. 18CC an! r%le in (avor o( t$e ,it$!ra,al o( t$e real &ro&ert' ta4 e4em&tion &rovi!e! %n!er =.D. No. 70C. #s regar!s t$e secon! iss%e &etitioner ,$ic$ claims t$at 3.O. 81 !oes not re&eal social stat%tes li+e =.D. 70C in t$e same breat$ ta+es re(%ge in )ec. 1 ;e< o( t$e same 3.O. 81 to ,it: )ection 1. 2$e &rovisions o( an' general or s&ecial la, to t$e contrar' not,it$stan!ing all ta4 an! !%t' incentives grante! to government an! &rivate entities are $ereb' ,it$!ra,n e4ce&t: . . . ;e< t$ose con(erre! %n!er t$e (o%r basic co!es namel': . . . ;iv< t$e -eal =ro&ert' 2a4 Co!e as amen!e! . . . in relation to )ec. 05 o( t$e -eal =ro&ert' 2a4 Co!e ,$ic$ &rovi!es: )ec. 05. 34em&tions (rom -eal =ro&ert' 2a4. 2$e e4em&tion s$all be as (ollo,s: . . . ;g< -eal &ro&ert' e4em&t %n!er ot$er la,s an! concl%!ing t$at =.D. 70C is one o( t$e "ot$er la,s" re(erre! to. 6e !o not agree. *( 6e are to sanction t$is inter&retation t$en necessaril' all real &ro&erties e4em&t b' an' la, ,o%l! be covere! an! t$ere ,o%l! be no nee! (or t$e legislat%re to s&eci(' "-eal =ro&ert' 2a4 Co!e as amen!e!" instea! o( stating clearl' "realt' ta4 e4em&tion la,s". *n!%bitabl' t$e intention is to limit t$e a&&lication o( t$e "e4ce&tion cla%se" onl' to t$ose con(erre! b' t$e -eal =ro&ert' 2a4 Co!e. 2$is is not onl' a logical constr%ction o( t$e &rovisions b%t more so in +ee&ing ,it$ t$e &rinci&le o( stat%tor' constr%ction t$at ta4 e4em&tions are constr%e! strictl' against ta4&a'ers $ence t$e' cannot be create! b' mere im&lication b%t m%st be clearl' &rovi!e! b' la,. NonD e4em&tion in case o( !o%bt is (avore!. W%ite obvio%sl' t$e e4ce&tion in )ec. 1 ;e< ;iv< o( 3.O. 81 re(ers to "t$ose con(erre! %n!er . . . -eal =ro&ert' 2a4 Co!e as amen!e!" an! t$at t$e e4em&tion claime! b' &etitioner is grante! not b' t$e -eal =ro&ert' 2a4 Co!e b%t b' =.D. 70C. 6$en )ec. 05 ;g< o( t$e =ro&ert' 2a4 Co!e &rovi!es t$at "U2V$e e4em&tion s$all be as (ollo,s: . . . -eal =ro&ert' e4em&t %n!er ot$er la,s". t$e Co!e merel' recogniBes realt' ta4 e4em&tions &rovi!e! b' ot$er la,s ot$er,ise it ma' %n,ittingl' re&eal t$ose "ot$er la,s". 2$e arg%ment o( &etitioner t$at =.D. 70C is a social stat%te to give (les$ to t$e Constit%tional &rovisions on $o%sing $ence not covere! b' =.D. 18CC ,as s.%arel' met b' res&on!ent CB## in its -esol%tion o( 7%l' 1 1881 to ,$ic$ 6e (%ll' agree "2$e &$rase Han' s&ecial or general la,H e4&licitl' in!icates t$at =.D. No. 18CC !i! not !isting%is$ bet,een a social stat%te an! an economic or ta4 legislation. Hence ,$ere t$e la, !oes not !isting%is$ ,e cannot !isting%is$. *n vie, t$ereo( ,e $ave no reco%rse b%t to a&&l' t$e e4&ress &rovision o( =.D. No. 18CC an! r%le in (avor o( t$e ,it$!ra,al o( t$e real &ro&ert' ta4
81

e4em&tion &rovi!e! %n!er =.D. No. 70C. 6e also (in! ,it$o%t merit t$e contention o( =etitionerD #&&ellan t t$at B.=. No. 181 ;*nvestment *ncentives =olic' #ct o( 1881< is t$e so%rce an! reason (or t$e e4istence o( =.D. No. 18CCA t$ere(ore t$e sco&e o( =.D. No. 18CC is limite! to investment incentives. #lt$o%g$ )ection /5 o( sai! B.=. ,$ic$ a%t$oriBes t$e =resi!ent to restr%ct%re investment incentives s'stems?legislation s to align t$em ,it$ t$e overall economic !evelo&ment ob9ectives is one o( t$e !eclare! &olicies o( =.D. No. 18CC its &rimar' aim is t$e (orm%lation o( national recover' &rogram to meet an! overcome t$e grave emergenc' arising (rom t$e c%rrent economic crisis. Hence it cannot be maintaine! t$at its &rovisions a&&l' onl' to investment incentives. Besi!es even granting t$at its sco&e is limite! it is note! t$at =.D. No. 70C also s&ea+s o( investment incentives in )ections / an! 1 t$ereo( . . ." ,ational *evelopment Co. v. Cebu Cit# Facts: =roclamation No. 015 ,as iss%e! b' t$e =resi!ent ,$ic$ reserve! Bloc+ no. 0 -eclamation #rea No. 0 o( Ceb% Cit' consisting o( 0 C88 s.%are meters (or ,are$o%sing &%r&oses %n!er t$e a!ministration o( National 6are$o%sing Cor&oration. )%bse.%entl' a ,are$o%se ,it$ a (loor area o( 1 805 s.%are meters more or less ,as constr%cte! t$ereon. N6C !issolve! NDC too+ over. Commencing 1808 Ceb% assesse! an! collecte! (rom NDC real estate ta4es on t$e lan! an! t$e ,are$o%se t$ereon. B' t$e (irst .%arter o( 1875 a total o( =155 11G.11 ,as &ai! b' NDC o( ,$ic$ onl' =1 88C.5G ,as %n!er &rotest. On /5 Marc$ 1875 NDC ,rote t$e Cit' #ssessor !eman!ing (%ll re(%n! o( t$e real estate ta4es &ai! claiming t$at t$e lan! an! t$e ,are$o%se stan!ing t$ereon belonge! to t$e -e&%blic an! t$ere(ore e4em&t (rom ta4ation. Ceb% !i! not ac.%iesce in t$e !eman! $ence t$e &resent s%it (ile! /C October 187/ in t$e Co%rt o( First *nstance o( Manila. CF*: Ceb% to re(%n! t$e real estate ta4es &ai! b' NDC (or t$e &arcel o( lan! covere! b' =resi!ential =roclamation No. 015 o( #%g%st 15 1818 an! t$e ,are$o%se erecte! t$ereon (rom an! a(ter October /C 18GG C#: certi(ie! t$e case to )C as one involving &%re .%estions o( la, &%rs%ant to )ec. 17 -.#. /8G. *ss%e: 6ON NDC is e4em&te! (rom &a'ment o( t$e real estate ta4es on t$e lan! reserve! b' t$e =resi!ent (or ,are$o%sing &%r&oses as ,ell as t$e ,are$o%se constr%cte! t$ereon an! in t$e a((irmative ,$et$er NDC ma' recover in re(%n! %n&roteste! real estate ta4es it &ai! (rom 1808 to 1875. )ection 1 &ar. ;a< o( t$e #ssessment La, on ,$ic$ NDC claims real estate ta4 e4em&tion &rovi!es S )ection 1. =ro&ert' e4em&t (rom ta4. S 2$e e4em&tions s$all be as (ollo,s: ;a< =ro&ert' o,ne! b' t$e @nite! )tates o( #merica t$e Common,ealt$ o( t$e =$ili&&ines an' &rovince cit' m%nici&alit' at m%nici&al !istrict . . . 2$e same o&inion o( NDC ,as &asse! %&on in National Develo&ment Co. v. =rovince o( N%eva 3ci9a ,$ere 6e $el! t$at its &ro&erties ,ere not com&re$en!e! in )ec. 1 &ar ;a< o( t$e #ssessment La,. *n &art 6e state!: 1. Common,ealt$ #ct No. 18/ ,$ic$ create! NDC contains no &rovision e4em&ting it (rom t$e &a'ment o( real estate ta4 on &ro&erties it ma' ac.%ire . . . 2$ere is 9%sti(ication in t$e contention o( &lainti((Da&&ellee t$at . . . U*Vt is %n!eniable t$at to an' m%nici&alit' t$e &rinci&al so%rce o( reven%e ,it$ ,$ic$ it ,o%l! !e(ra' its o&eration ,ill came (rom real &ro&ert' ta4es. *( t$e National Develo&ment Com&an' ,o%l! be e4em&t (rom &a'ing real &ro&ert' ta4es over t$ese &ro&erties t$e to,n o( Gabal!on ,ill be !e&rive! o( m%c$ nee!e! reven%es ,it$ ,$ic$ it ,ill maintain itsel( an! (inance t$e com&elling nee!s o( its in$abitants /. De(en!antDa&&ellant NDC !oes not come %n!er classi(ication o( m%nici&al or &%blic cor&oration in t$e sense t$at it ma' s%e an! be s%e! in t$e same manner as an' ot$er &rivate cor&orations an! in t$is sense it is an entit' !i((erent (rom t$e government !e(en!ant cor&oration ma' be s%e! ,it$o%t its consent an! is s%b9ect to ta4ation. *n t$e case NDC vs. 7ose :%lo 2obias 7 )C-# G8/ it ,as $el! t$at . . . &lainti(( is
8/

neit$er t$e Government o( t$e -e&%blic nor a branc$ or s%b!ivision t$ereo( b%t a government o,ne! an! controlle! cor&oration ,$ic$ cannot be sai! to e4ercise a sovereign (%nction. it is a b%siness cor&oration an! as s%c$ its ca%ses o( action are s%b9ect to t$e stat%te o( limitations. . . . 2$at &lainti(( $erein !oes not e4ercise sovereign &o,ers S an! $ence cannot invo+e t$e e4em&tions t$ereo( XX b%t is an agenc' (or t$e &er(ormance o( &%rel' cor&orate &ro&rietar' or b%siness (%nctions is a&&arent (rom its Organic #ct ;Common,ealt$ #ct 18/ as amen!e! b' Common,ealt$ #ct 111< &%rs%ant to )ection 1 o( ,$ic$ it "s$all be s%b9ect to t$e &rovisions o( t$e Cor&oration La, inso(ar as t$e' are not inconsistent" ,it$ t$e &rovisions o( sai! Common,ealt$ #ct "an! s$all $ave t$e general &o,ers mentione! in sai!" Cor&oration La, an! $ence "ma' engage in commercial in!%strial mining agric%lt%ral an! ot$er enter&rises ,$ic$ ma' be necessar' or contrib%tor' to t$e economic !evelo&ment o( t$e co%ntr' or im&ortant in t$e &%blic interest " as ,ell as "ac.%ire $ol! mortgage an! alienate &ersonal an! real &ro&ert' in t$e =$ili&&ines or else,$ereA . . . ma+e contracts o( an' +in! an! !escri&tion" an! "&er(orm an' an! all acts ,$ic$ a cor&oration or nat%ral &ersons is a%t$oriBe! to &er(orm %n!er t$e la,s no, e4isting or ,$ic$ ma' be enacte! $erea(ter." 6e (in! no com&elling reason ,$' t$e (oregoing r%ling alt$o%g$ re(erring to lan!s ,$ic$ ,o%l! event%all' be trans(erre! to &rivate in!ivi!%als s$o%l! not a&&l' e.%all' to t$is case. NDC cites Boar! o( #ssessment #&&eals =rovince o( Lag%na v. Co%rt o( 2a4 #&&eal an! National 6ater,or+s an! )e,erage #%t$orit' ;N6)#<. *n t$at case 6e $el! t$at &ro&erties o( N6)# a GOCC ,ere e4em&t (rom real estate ta4 beca%se )ec. 1 &ar ;c< o( -.#. 075 !i! not !isting%is$ bet,een t$ose &ossesse! b' t$e government in sovereign?governmen tal?&olitical ca&acit' an! t$ose in &rivate?&ro&rietar' ?&atrimonial c$aracter.
2$e con(lict bet,een NDC v. N%eva 3ci9a s%&ra an!

B## v. C2# an! N6)# s%&ra is more s%&er(icial t$an real. 2$e NDC !ecision s&ea+s o( &ro&erties o,ne! b' NDC ,$ile t$e B## r%ling concerns &ro&erties belonging to t$e -e&%blic. 2$e latter case a&&ears to be e4ce&tional beca%se t$e &arties t$erein sti&%late! 1. 2$at t$e &etitioner National 6ater,or+s an! )e,erage #%t$orit' ;N#6#)#< is a &%blic cor&oration create! b' virt%e o( -e&%blic #ct. No. 1181 an! t$at it is o,ne! b' t$e Government o( t$e =$ili&&ines as ,ell as all &ro&ert' com&rising ,ater,or+s an! se,erage s'stems &lace! %n!er it ;3m&$asis s%&&lie!<. 2$ere t$e Co%rt observe!: "*t is conce!e! in t$e sti&%lation o( (acts t$at t$e &ro&ert' involve! in t$is case "is o,ne! b' t$e Government o( t$e =$ili&&ines. " Hence it belongs to t$e -e&%blic o( t$e =$ili&&ines an! (alls s.%arel' ,it$in letter o( t$e above &rovision." *n t$e case at bar no similar statement a&&ears in t$e sti&%lation o( (acts $ence o,ners$i& o( s%b9ect &ro&erties s$o%l! (irst be establis$e!. For ,$ile it ma' be state! t$at t$e -e&%blic o,ns NDC it !oes not necessar' (ollo, t$at &ro&erties o,ne! b' NDC are also o,ne! b' -e&%blic S in t$e same ,a' t$at stoc+$ol!ers are not i&so (actoo,ners o( t$e &ro&erties o( t$eir cor&oration. 2$e -e&%blic li+e an' in!ivi!%al ma' (orm a cor&oration ,it$ &ersonalit' an! e4istence !istinct (rom its o,n. 2$e se&arate &ersonalit' allo,s a GOCC to $ol! an! &ossess &ro&erties in its o,n name an! t$%s &ermit greater in!e&en!ence an! (le4ibilit' in its o&erations. *t ma' t$ere(ore be state! t$at ta4 e4em&tion o( &ro&ert' o,ne! b' t$e -e&%blic o( t$e =$ili&&ines "re(ers to &ro&erties o,ne! b' t$e Government an! b' its agencies ,$ic$ !o not $ave se&arate an! !istinct &ersonalities ;%nincor&orate! entities<. 2$e (oregoing !isc%ssion !oes not mean t$at beca%se NDC li+e most GOCCHs engages in commercial enter&rises all &ro&erties o( t$e government an! its %nincor&orate! agencies &ossesse! in &ro&riet' c$aracter are ta4able.
81

)imilarl' in t$e case at bar NDC &rocee!e! on t$e &remise t$at t$e B## r%ling !eclare! all &ro&erties o,e! b' GOCCHs as &ro&erties in t$e name o( t$e -e&%blic $ence e4em&t %n!er )ec. 1 o( t$e #ssessment La,. 2o come ,it$in t$e ambit o( t$e e4em&tion &rovi!e! in #rt. 1 &ar. ;a< o( t$e #ssessment La, it is im&ortant to establis$ t$at t$e &ro&ert' is o,ne! b' t$e government or its %nincor&orate! agenc' an! once government o,ners$i& is !etermine! t$e nat%re o( t$e %se o( t$e &ro&ert' ,$et$er (or &ro&rietar' or sovereign &%r&oses becomes immaterial. 6$at a&&ears to $ave been ce!e! to N6C ;later trans(erre! to NDC< in t$e case be(ore @s is merel' t$e a!ministration o( t$e &ro&ert' ,$ile t$e government retains o,ners$i& o( ,$at $as been !eclare! reserve! (or ,are$o%sing &%r&oses %n!er =roclamation No. 015. *nci!entall' t$e &arties never raise! t$e iss%e! t$e iss%e o( o,ners$i& (rom t$e co%rt a .%o to t$is Co%rt. # reserve! lan! is !e(ine! as a "U&V%blic lan! t$at $as been ,it$$el! or +e&t bac+ (rom sale or !is&osition. " 2$e lan! remains "absol%te &ro&ert' o( t$e government." 2$e government "!oes not &art ,it$ its title b' reserving t$em ;lan!s< b%t sim&l' gives notice to all t$e ,orl! t$at it !esires t$em (or a certain &%r&ose." #bsol%te !is&osition o( lan! is not im&lie! (rom reservationA it merel' means "a ,it$!ra,al o( a s&eci(ie! &ortion o( t$e &%blic !omain (rom !is&osal %n!er t$e lan! la,s an! t$e a&&ro&riation t$ereo( (or t$e time being to some &artic%lar %se or &%r&ose o( t$e general government." #s its title remains ,it$ t$e -e&%blic t$e reserve! lan! is clearl' recovere! b' t$e ta4 e4em&tion &rovision. Ceb%: reservation o( t$e &ro&ert' in (avor o( N6C or NDC is a (orm o( !is&osition o( &%blic lan! ,$ic$ s%b9ects t$e reci&ient ;NDC < to real estate ta4ation %n!er )ec. 11C o( t$e =%blic Lan! #ct. as amen!e! b' -.#. 01G. #s 6e vie, it t$e e((ect o( reservation %n!er )ec. 81 is to segregate a &iece o( &%blic lan! an! trans(orm it into nonDalienable or nonD!is&osable %n!er t$e =%blic Lan! #ct. )ection 11C on t$e ot$er $an! a&&lies to !is&osable &%blic lan!s. Clearl' t$ere(ore )ec. 11C !oes not a&&l' to lan!s reserve! %n!er )ec. 81. Conse.%entl' t$e s%b9ect reserve! &%blic lan! remains ta4 e4em&t. #s regar!s t$e ,are$o%se constr%cte! on a &%blic reservation a !i((erent r%le s$o%l! a&&l' beca%se "UtV$e e4em&tion o( &%blic &ro&ert' (rom ta4ation !oes not e4ten! to im&rovements on t$e &%blic lan!s ma!e b' &reDem&tioners $omestea!ers an! ot$er claimants or occ%&ants at t$eir o,n e4&ense an! t$ese are ta4able b' t$e state . . ." Conse.%entl' t$e ,are$o%se constr%cte! on t$e reserve! lan! b' N6C ;no, %n!er a!ministration b' NDC< in!ee! s$o%l! &ro&erl' be assesse! real estate ta4 as s%c$ im&rovement !oes not a&&ear to belong to t$e -e&%blic. )ince t$e reservation is e4em&t (rom realt' ta4 t$e erroneo%s ta4 &a'ments collecte! b' Ceb% s$o%l! be re(%n!e! to NDC. 2$is is in consonance ,it$ )ec. 05 &ar. ;a< o( t$e (ormer -eal =ro&ert' 2a4 Co!e ,$ic$ e4em&te! (rom ta4ation real &ro&ert' o,ne! b' t$e -e&%blic o( t$e =$ili&&ines or an' o( its &olitical s%b!ivisions as ,ell as an' GOCC so e4em&t b' its c$arter. #s regar!s t$e re.%irement o( &a'ing %n!er &rotest be(ore 9%!icial reco%rse C3B@ arg%es t$at in an' case NDC is not entitle! to re(%n! beca%se )ec. 7C o( -.#. 18C7 t$e -evise! C$arter o( t$e Cit' o( Ceb% re.%ires &a'ment%n!er &rotest be(ore resorting to 9%!icial action (or ta4 re(%n!A t$at it co%l! not $ave acte! on t$e (irst !eman! letter o( NDC o( /5 Ma' 1875 beca%se it ,as sent to t$e Cit' #ssessor an! not to t$e Cit' 2reas%rerA t$at conse.%entl' t$ere $aving been no a&&ro&riate &rior !eman! resort to 9%!icial reme!' is &remat%reA an! t$at even on t$e &remise t$at t$ere ,as &ro&er !eman! NDC $as 'et to e4$a%st a!ministrative reme!ies b' ,a' o( a&&eal to t$e De&artment o( Finance an!?or #%!itor General be(ore ta+ing 9%!icial action.
80

NDC e4em&t (rom real estate ta4 on t$e reserve! lan! b%t liable (or t$e ,are$o%se erecte! t$ereon. Province o! 'arlac v. +u ge Alcantara Facts: 2arlac 3nter&rises is t$e o,ner o( a &arcel o( lan! an ice !ro& (actor' a mac$iner' s$e! all locate! at Mabini 2arlac 2arlac mac$iner' o( Diesel 3lect.. )ets. -eal estate ta4es o( t$e a(oresai! &ro&erties (rom 1870 to December 11 188/ in t$e total amo%nt o( =C1/ 01C.CC incl%!ing &rinci&als an! &enalties $as not been &ai!. 2arlac no, &ra's (or &a'ment as ,ell as !amages an! costs o( s%it. 23 move! to !ismiss. LC !enie!. M- !enie!. 2$erea(ter 2arlac set t$e a%ction sale o( 23Hs &ro&erties to satis(' t$e real estate ta4es !%e. 2$is &rom&te! 23 to (ile a motion &ra'ing t$at &etitioner be !irecte! to !esist (rom &rocee!ing ,it$ t$e &%blic a%ction sale. LC: iss%e! an or!er granting sai! motion to &revent mootness o( t$e case consi!ering t$at t$e &ro&erties to be sol! ,ere t$e s%b9ects o( t$e com&laint. 23>s ans,er: !eman!s (or t$e &a'ment o( real &ro&ert' ta4es $a! been ma!e b%t it re(%se! to &a' t$e same (or t$e reason t$at %n!er )ec. 05 &aragra&$ ;g< o( =D 0G0 in relation to =.D. No.. CC1 as amen!e! it ,as e4em&t (rom &a'ing sai! ta4. *t also raise! as a((irmative !e(enses t$at t$e com&laint state! no ca%se o( action an! t$at t$e claims $a! been ,aive! aban!one! or ot$er,ise e4ting%is$e! or barre! b' t$e stat%te o( limitations. LC: !ismisse! t$e com&laint. *t r%le! t$at =.D. No. CC1 e4&ressl' e4em&ts &rivate res&on!ent (rom &a'ing t$e real &ro&ert' ta4es !eman!e! it being a grantee o( a (ranc$ise to generate !istrib%te an! sell electric c%rrent (or lig$t. 2$e co%rt $el! t$at in lie% o( sai! ta4es &rivate res&on!ent $a! been re.%ire! to &a' t,o &ercent ;/Y< (ranc$ise ta4 in line ,it$ t$e intent o( t$e la, to give assistance to o&erators s%c$ as t$e &rivate res&on!ent to enable t$e cons%mers to en9o' c$ea&er rates. B%t%an )a,mill *nc. v. Cit' o( B%t%an: t$e co%rt r%le! t$at localDgovernments are ,it$o%t &o,er to ta4 t$e electric com&anies alrea!' s%b9ect to (ranc$ise ta4 %nless t$eir (ranc$ise allo,s t$e im&osition o( a!!itional ta4. M-: !enie!. *))@3: 6ON 23 is e4em&t (rom t$e &a'ment o( real &ro&ert' ta4 %n!er )ec. 05 ;g< o( =.D. No. 0G0 in relation to =.D. No. CC1 as amen!e!. NO. )ec. 05;g< o( =.D. No. 0G0 t$e -eal =ro&ert' 2a4 Co!e: )3C. 05. 34em&tions (rom -eal =ro&ert' 2a4. D 2$e e4em&tion s$all be as (ollo,s:;g< -eal &ro&ert' e4em&t %n!er ot$er la,s. 23 conten!s t$at t$e "ot$er la,s" re(erre! to in t$is )ection is =.D. No. CC1 ;Lo,ering t$e Cost to Cons%mers o( 3lectricit' b' -e!%cing t$e Franc$ise 2a4 =a'able b' 3lectric Franc$ise Hol!ers an! t$e 2ari(( on F%el Oils (or t$e Generation o( 3lectric =o,er b' =%blic @tilities<. *ts &ertinent &rovisions state: )3C2*ON 1. #n' &rovision o( la, or local or!inance to t$e contrar' not,it$stan!ing t$e (ranc$ise ta4 &a'able b' all grantees o( (ranc$ises to generate !istrib%te an! sell electric c%rrent (or lig$t $eat an! &o,er s$all be t,o ;/Y< o( t$eir gross recei&ts receive! (rom t$e sale o( electric c%rrent an! (rom transactions inci!ent to t$e generation !istrib%tion an! sale o( electric c%rrent. )%c$ (ranc$ise ta4 s$all be &a'able to t$e Commissioner o( *nternal -even%e or $is !%l' a%t$oriBe! re&resentative on or be(ore t$e t,entiet$ !a' o( t$e mont$ (ollo,ing t$e en! o( eac$ calen!ar .%arter or mont$ as ma' be &rovi!e! in t$e res&ective (ranc$ise or &ertinent m%nici&al reg%lation an! s$all an' &rovision o( t$e Local 2a4 Co!e or an' ot$er la, to t$e contrar' not,it$stan!ing be in lie% o( all ta4es assessments o( ,$atever nat%re im&ose! b' an' national or a%t$orit' on earnings recei&ts income an! &rivilege o( generation !istrib%tion an! sale o( electric c%rrent." =.D. No. CC1 ,as amen!e! on December 18. 187C b' =.D. No. 8C/ 15 ,it$ t$e insertion o( t$e &$rase "an! (or t$e man%(act%re !istrib%tion an! sale o( cit' gas" bet,een t$e &$rases ". . . lig$t $eat an! &o,er" an! "s$all be t,o ;/Y< . . . ." 6e !o not agree ,it$ t$e lo,er co%rt t$at t$e &$rase "in lie% o( all ta4es an! assessments o( ,$atever nat%re" in t$e secon! &aragra&$ o( )ec. 1 o( =.D. No. CC1 e4&ressl' e4em&ts &rivate res&on!ent (rom &a'ing real &ro&ert' ta4es. #s correctl' observe! b' t$e &etitioner sai! &roviso is
8C

mo!i(ie! an! !elimite! b' t$e &$rase "on earnings recei&ts. income an! &rivilege o( generation !istrib%tion an! sale" ,$ic$ s&eci(ies t$e +in!s o( ta4es an! assessments ,$ic$ s$all not be collecte! in vie, o( t$e im&osition o( t$e (ranc$ise ta4. )ai! en%merate! items %&on ,$ic$ ta4es s$all not be im&ose! $ave no relation at all to an! are entirel' !i((erent (rom. real &ro&erties s%b9ect to ta4. *( t$e intention o( t$e la, is to e4em&t electric (ranc$ise grantees (rom &a'ing real &ro&ert' ta4 an! to ma+e t$e t,o ;/Y< &ercent (ranc$ise ta4 t$e onl' im&osable ta4 t$en sai! en%merate! items ,o%l! not $ave been a!!e! ,$en =.D. No. 8C/ ,as enacte! to amen! =.D. No. CC1. 2$e legislative a%t$orit' ,o%l! $ave sim&l' sto&&e! a(ter t$e &$rase "national or local a%t$orit'" b' &%tting t$erein a &erio!. On t$e contrar' it ,ent on to en%merate ,$at s$o%l! not be s%b9ect to ta4 t$ereb' !elimiting t$e e4tent o( t$e e4em&tion. 6e li+e,ise !o not (in! merit in &rivate res&on!entHs contention t$at t$e real &ro&erties being ta4e! viB. t$e mac$iner' (or t$e generation an! !istrib%tion o( electric &o,er t$e b%il!ing $o%sing sai! mac$iner' an! t$e lan! on ,$ic$ sai! b%il!ing is constr%cte! are necessar' (or t$e o&eration o( its b%siness o( generation !istrib%tion an! sale o( electric c%rrent an! t$ere(ore t$e' s$o%l! be e4em&te! (rom ta4ation. =rivate res&on!ent a&&arentl' !oes not .%ite com&re$en! t$e !istinction among t$e s%b9ect matters or ob9ects o( t$e ta4es involve!. *t bears em&$asis t$at =.D. No. CC1 as amen!e! b' =.D. No. 8C/ !eals ,it$ (ranc$ise ta4 an! tari(( on (%el oils an! t$e "earnings recei&ts income an! &rivilege o( generation !istrib%tion an! sale o( electric c%rrent" are t$e items e4em&te! (rom ta4ation b' t$e im&osition o( sai! ta4 or tari(( !%t'. On t$e ot$er $an! t$e collection com&laint (ile! b' &etitioner s&eci(ie! onl' ta4es !%e on real &ro&erties. 6$ile =.D. No. CC1 ,as inten!e! to give "assistance to t$e (ranc$ise $ol!ers b' re!%cing some o( t$eir ta4 an! tari(( obligations " to constr%e sai! !ecree as $aving grante! s%c$ (ranc$ise $ol!ers e4em&tion (rom &a'ment o( real &ro&ert' ta4 ,o%l! %n!%l' e4ten! t$e ambit o( e4em&tions be'on! t$e &%rvie, o( t$e la,. 2$e anne4es attac$e! to &rivate res&on!entHs comment on t$e &etition to &rove b' contem&oraneo%s inter&retation its claime! ta4 e4em&tion are not o( m%c$ $el& to it. De&artment Or!er No. 1CD70 !ate! )e&tember 1G 1870 reg%lating t$e im&lementation o( =.D. No. CC1 merel' reiterates t$e "in lie% o( all ta4es" &roviso. Local 2a4 -eg%lations 1D7C 1/ iss%e! b' t$en )ecretar' o( Finance Cesar Kirata an! a!!resse! to all =rovincial an! Cit' 2reas%rers en9oins strict com&liance ,it$ t$e !irective t$at "t$e (ranc$ise ta4 im&ose! %n!er Local 2a4 Or!inances &%rs%ant to )ection 18 o( t$e Local 2a4 Co!e as amen!e! s$all be collecte! (rom b%siness $ol!ing (ranc$ises b%t not (rom establis$ments ,$ose (ranc$ise contains t$e in lie% o( all ta4esH &roviso " t$ereb' clearl' in!icating t$at sai! &roviso e4em&ts ta4&a'ers li+e &rivate res&on!ent (rom &a'ing t$e (ranc$ise ta4 collecte! b' t$e &rovinces %n!er t$e Local 2a4 Co!e. Lastl' t$e letter o( t$e t$en B*- #cting Commissioner a!!resse! to t$e Matic La, O((ice granting e4em&tion to t$e latterHs client (rom &a'ing t$e "&rivilege ta4 ,$ic$ is an e4cise ta4 on t$e &rivilege o( engaging in b%siness" clearl' e4cl%!es realt' ta4 (rom s%c$ e4em&tion. 6e also (in! mis&lace! t$e lo,er co%rtHs an! t$e &rivate res&on!entHs reliance on B%t%an )a,mill. v. Cit' o( B%t%an. *n t$at case t$e .%estione! ta4 is a ta4 on t$e gross sales or recei&ts o( sai! sa,mill ,$ile t$e ta4 involve! $erein is a real &ro&ert' ta4. 2$e Cit' o( B%t%an is categoricall' &ro$ibite! t$erein b' )ec. /;9< o( t$e Local #%tonom' #ct (rom im&osing "ta4es o( an' +in!Non &erson &a'ing (ranc$ise ta4." On t$e ot$er $an! =.D. No. CC1 is not as allDencom&assing as sai! &rovision o( t$e Local #%tonom' #ct (or it en%merates t$e items ,$ic$ are not ta4able b' virt%e o( t$e &a'ment o( (ranc$ise ta4.
8G

*t $as al,a's been t$e r%le t$at "e4em&tions (rom ta4ation are constr%e! in strictissimi 9%ris against t$e ta4&a'er an! liberall' in (avor o( t$e ta4ing a%t$orit'" &rimaril' beca%se "ta4es are t$e li(ebloo! o( government an! t$eir &rom&t an! certain availabilit' is an im&erio%s nee!." 2$%s to be e4em&te! (rom &a'ment o( ta4es it is t$e ta4&a'erHs !%t' to 9%sti(' t$e e4em&tion "b' ,or!s too &lain to be mista+en an! too categorical to be misinter&rete!. =rivate res&on!ent $as %tterl' (aile! to !isc$arge t$is !%t'. Lo,er co%rt erre! in e4em&ting 23 (rom &a'ing real &ro&ert' ta4 on its &ro&erties ,$ic$ are en%merate! in t$e com&laint. Ho,ever in its !ecision t$e lo,er co%rt (o%n! t$at &rivate res&on!ent o,ns onl' t$ree real &ro&erties consisting o( t$e &arcel o( lan! mac$iner' s$e! an! mac$iner' noticeabl' omitting t$e ice !ro& (actor' mentione! in its com&laint b' t$e &etitioner. *n vie, $o,ever o( t$e &etitionerHs (ail%re to assign s%c$ omission as an error t$e same s$o%l! be consi!ere! ,aive!. Casi@o v. CA Facts: 2$e )angg%niang =angl%ngso! o( Gingoog &asse! -esol%tion 08 ,$ic$ classi(ie! certain areas incl%!ing CasiRo>s colise%m ,$ic$ ,as license! as a coc+&it. 2$e classi(ication le! to t$e cancellation o( CasiRo>s license to o&erate s%c$ coc+&it. 2$e or!inance &rovi!es t$at c$anges in t$e Boning or!inance as a res%lt o( t$e revie, b' t$e Local -evie, Committee s$all be treate! as an amen!ment &rovi!e! t$at s%c$ is carrie! o%t t$ro%g$ a resol%tion o( t$ree (o%rt$s vote o( t$e )=. )ai! amen!ments s$all ta+e e((ect onl' a(ter a&&roval an! a%t$entication b' t$e H)-C. On #%g%st 11 188C -esol%tion No. 178 Co!e Or!inance )eries o( 188C reclassi(ie! Bloc+ 1/C as ,it$in t$e recreational Bone t$%s allege!l' amen!ing -esol%tion No. 08. Nine ;8< members o( t$e sai! )= &artici&ate! ,it$ (o%r ;0< members voting (or t$e amen!ment ,$ile (o%r ;0< vote! against an! ,it$ one ;1< abstention. 2$e viceDma'or as &resi!ing o((icer bro+e t$e !ea!loc+ b' voting (or t$e amen!ment. 6$en -esol%tion No. 178 ,as transmitte! to t$en Cit' Ma'or Mig%el =a!eranga (or a&&roval $e ret%rne! t$e same to t$e )= ,it$in ten !a's ,it$o%t an' action stating t$at $is a&&roval t$ereo( ,as not necessar' since it !i! not involve a !is&osition o( cit' government (%n!s as &rovi!e! b' )ection 185 o( t$e LGC an! )ection 10 o( t$e c$arter o( Gingoog Cit'. B' virt%e o( sai! -esol%tion No. 178 Ma'or L%go! iss%e! to &etitioner t$e a(orestate! &ermit to o&erate a coc+&it !ate! #&ril / 188G ,$ic$ ,as rene,e! b' anot$er &ermit iss%e! on 7an%ar' C 1887. Gingoog Gallera &roteste! t$e o&eration o( Colise%m be(ore t$e =$ili&&ine Game(o,l Commission. 2$e &rotest ,as (o%n!e! on t$e (act t$at no certi(icate o( registration $a! as 'et been iss%e! b' t$e =GC alt$o%g$ cit' ma'orHs &ermits ,ere iss%e! to &etitioner. On #&ril 11 188G t$e =GC t$ro%g$ O*C Orog sent a telegram to t$e )tation Comman!er o( Gingoog Cit' to s%s&en! in t$e meantime t$e o&eration o( t$e coc+&it. On #&ril /0 188G t$e =GC event%all' sent a telegram to t$e cit' ma'or to sto& an' coc+(ig$t in t$e Colise%m in vie, o( its (ail%re to register ,it$ t$e =GC. 2$erea(ter an action (or &ro$ibition an! man!am%s ,it$ &reliminar' in9%nction ,as (ile! b' Gallera be(ore t$e -2C against &etitioner on t$e gro%n! t$at -esol%tion No. 178 &%r&orte!l' amen!ing Boning Or!inance No. 08 is invali!. *t asserte! t$at t$e classi(ication o( Colise%mHs site as still ,it$in t$e resi!ential Bone o( Gingoog Cit' ,as accor!ingl' maintaine! an! %nc$ange! t$ereb'
87

ren!ering t$e ma'orHs &ermits iss%e! to t$e latter n%ll an! voi! (or being in violation o( )ection G o( t$e -%les an! -eg%lations o( t$e =GC. On #&ril /C 188G t$e trial co%rt iss%e! a ,rit o( &reliminar' in9%nction en9oining &etitioner to !esist (rom o&erating t$e Colise%m %ntil t$e =GC s$all $ave (inall' !eci!e! t$e controvers' bet,een &etitioner an! &rivate res&on!ent Gallera. -2C: !eclare! t$e a(oresai! ma'orHs &ermits n%ll an! voi! an! or!ere! CasiRo an! all &ersons re&resenting $im or acting in $is be$al( (rom (%rt$er o&erating t$e coc+&it in .%estion. M- !enie!. *ss%es: 1. 6ON t$e =GC controls t$e o&erations o( t$e Don -om%lo -o!rig%eB Colise%m ,it$ res&ect to t$e local?or!inar' coc+(ig$ts !%ring )%n!a's $oli!a's an! (iestas in Gingoog Cit' !es&ite t$e (act t$at t$e Ma'or o( Gingoog Cit' iss%e! a ma'orHs &ermit (or 188G an! 1887 ,it$ t$e conc%rrence o( t$e sangg%niang &anl%ngso!. :3). =GC $as t$e &o,er not o( control b%t onl' o( revie, an! s%&ervision. 2$is &o,er ,as vali!l' e4ercise! b' sai! commission over Colise%m ,$en it so%g$t to sto& t$e (ormerHs o&erations t$ro%g$ t$e local o((icials. *t !i! not ,$imsicall' or!er t$e s%s&ension an! t$e conse.%ent sto&&age o( Colise%mHs o&erations. -at$er =GC onl' e4ercise! its &o,er o( revie, over t$e acts &er(orme! b' t$e local a%t$orities in relation to or ,$ic$ a((ect t$e e4ercise o( its (%nctions. 2$e &o,er o( revie, is e4ercise! to !etermine ,$et$er it is necessar' to correct t$e acts o( t$e s%bor!inate an! to see to it t$at $e &er(orms $is !%ties in accor!ance ,it$ la,. 2$is t$e =GC !i! b' bringing to t$e attention o( t$e local a%t$orities t$e nonDcom&liance b' &etitioner ,it$ t$e r%les involve! in t$is case ,$ic$ ,e (in! reasonable an! necessar' in t$e !isc$arge o( t$e reg%lator' (%nctions o( =GC. =GC ma' (or t$at &%r&ose an! as it !i! $ere in!icate its !isa&&roval o( t$e acts o( t$e local o((icials concerne! to stress an! &er(orm its role ,it$ res&ect to t$e reg%lation o( coc+&its. 2$e !ecision o( t$e First Division o( t$is Co%rt in Gingoog Gallera *nc. vs. =GC is not "!iametricall' o&&ose! to" t$e !ecision ren!ere! in t$is case in regar! to t$e &rimac' o( t$e &o,er?a%t$orit' bet,een t$e local o((icials o( t$e Cit' o( Gingoog an! t$e =GC. Bot$ !ecisions are in accor! ,it$ one anot$er. 2$e !ecision o( t$e First Division t$at it is t$e M%nici&al?Cit' Ma'or ,it$ t$e a%t$oriBation o( t$e )angg%niang Ba'an t$at $as t$e &rimar' &o,er to iss%e licenses (or t$e o&eration o( or!inar' coc+&its is o( t$e same tenor an! e((ect as t$e !ecision o( t$is case as can be seen in t$e (ollo,ing ,or!ings: 2$e tas+ o( granting licenses to o&erate coc+&its is lo!ge! ,it$ Cit' an! M%nici&al Ma'or ,it$ t$e conc%rrence o( t$eir res&ective )angg%nians. 2$is is s&eci(icall' grante! to t$em b' )ection 0 o( =resi!ential Decree No. 185/ as amen!e! b' =resi!ential Decree No. 185/D# ,$ic$ states: )ec. 0. Cit' an! M%nici&al Ma'ors ,it$ t$e conc%rrence o( t$eir res&ective )angg%nians s$all $ave t$e a%t$orit' to license an! reg%late reg%lar coc+(ig$ting &%rs%ant to t$e r%les an! reg%lations &rom%lgate! b' t$e Commission an! s%b9ect to its revie, an! s%&ervision. 6$ile t$is Co%rt agrees ,it$ t$e movant t$at a ma'orHs &ermit? license is a con!ition &rece!ent to t$e iss%ance o( t$e =GC -egistration Certi(icate in t$e case at bar t$e cit' ma'orHs &ermits iss%e! to movant ,ere n%ll an! voi! as t$e' ,ere grante! &%rs%ant to -esol%tion No. C78 ,$ic$ never too+ e((ect beca%se o( nonDcom&liance ,it$ t$e &roce!%re &rescribe! in -esol%tion No. 08. #n! beca%se o( t$e n%llit' o( t$e Ma'orHs &ermit t$e -egistration Certi(icate No. CD8G81G iss%e! to movant is li+e,ise n%ll an! voi!. 2$e s&ring cannot rise $ig$er t$an its so%rce /. 6ON t$e ma'orHs &ermits iss%e! b' t$e Ma'or o( Gingoog Cit' (or t$e 'ears 188G an! 1887 are n%ll an! voi! beca%se -esol%tion 178 !i! not amen! )ection G.00 o( -esol%tion 08 Co!e Or!inance o( 1880 t$e t$reeD(o%rt$s ;1?0< votes not $aving been obtaine! in &assing sai! -esol%tion 178. :3). =etitioner: legal beca%se t$e same ,as &asse! b' t$e sangg%nian b' a ma9orit' o( (ive a((irmative votes as against (o%r negative votes. He conten!s
88

t$at t$e t$reeD(o%rt$s vote re.%irement %n!er )ection G.00 -esol%tion No. 08 asi!e (rom its being merel' a (ormal re.%irement is an enactment o( t$e sangg%nian ,$ic$ is %ltra vires. )C: -esol%tion No. 178 ,as !eclare! invali! b' t$e Co%rt o( #&&eals (or (ail%re to com&l' ,it$ t$e re.%ire! votes necessar' (or its vali!it'. #lt$o%g$ t$e c$arter o( t$e Cit' o( Gingoog an! t$e LGC re.%ire onl' a ma9orit' (or t$e enactment o( an or!inance -esol%tion No. 08 cannot be vali!l' amen!e! b' t$e resol%tion in .%estion ,it$o%t com&l'ing ,it$ t$e categorical re.%irement o( a t$reeD(o%rt$s vote incor&orate! in t$e ver' same or!inance so%g$t to be amen!e!. 2$e &ertinent &rovisions in t$e a(oresai! cit' c$arter an! t$e LGC obvio%sl' are o( general a&&lication an! embrace a ,i!er sco&e or s%b9ect matter. *n t$e enactment o( or!inances in general t$e a&&lication o( t$e a(orementione! la,s cannot be !is&%te!. @n!eniabl' $o,ever )ection G.00 o( sai! or!inance regar!ing amen!ments t$ereto is a s&eci(ic an! &artic%lar &rovision (or sai! or!inance an! e4&licitl' &rovi!es (or a !i((erent n%mber o( votes. 6$ere t$ere is in t$e same stat%te a &artic%lar enactment an! also a general one ,$ic$ in its most com&re$ensive sense ,o%l! incl%!e ,$at is embrace! in t$e (ormer t$e &artic%lar enactment m%st be o&erative an! t$e general statement m%st be ta+en to a((ect onl' s%c$ cases ,it$in its lang%age as are not ,it$in t$e &rovisions o( t$e &artic%lar enactment. *n t$e instant case alt$o%g$ t$e general la, on t$e matter re.%ires a mere ma9orit' t$e $ig$er re.%isite vote in -esol%tion No. 08 s$all govern since m%nici&al a%t$orities are in a better &osition to !etermine t$e evils so%g$t to be &revente! b' t$e incl%sion or incor&oration o( &artic%lar &rovisions in enacting a &artic%lar stat%te an! t$ere(ore to &ass t$e a&&ro&riate or!inance to attain t$e main ob9ect o( t$e la,. 2$is more stringent re.%irement on t$e necessar' votes (or amen!ments to -esol%tion No. 08 a&&arentl' (orestalle! t$e a&&re$en!e! contingenc' (or to borro, t$e ,or!s o( res&on!ent co%rt "in an a&&arent attem&t to get ri! o( t$is legal st%mbling bloc+ ;t$e &ro$ibition against a coc+&it in a resi!ential Bone %n!er =roclamation 08< t$e )angg%niang =angl%nso! o( Gingoog Cit' &asse! -esol%tion No. 178 Co!e Or!inance series o( 188C " . . . "t$ereb' reclassi('ing Bloc+ 1/C into a recreational Bone." 6it$al it is legall' &ermissible as e4ce&tions to t$e general &rovisions on meas%res covere! b' cit' c$arters an! t$e LGC t$at t$e vote re.%irement in certain or!inances ma' be s&eciall' &rovi!e! (or as in t$e case o( )ection G.00 o( -esol%tion No. 08 instea! o( t$e %s%al ma9orit' Kote. Bloc+ 1/C ,$ere Colise%m is locate! remains classi(ie! as a resi!ential area $ence t$e o&eration o( a coc+&it t$erein is &ro$ibite!. 2$is ,eig$t' consi!eration ,$ic$ s$o%l! act%all' be t$e &rinci&al basis (or t$e n%lli(ication b' res&on!ent co%rt o( t$e t,o ma'orHs &ermits iss%e!. *n t$e case at bar t$ere ,as no registration certi(icate iss%e! m%c$ less a%t$oriBation to o&erate given b' t$e =GC to t$e &rivate res&on!entD a&&ellant a con!ition &rece!ent be(ore a grant o( ma'ors &ermit or license to con!%ct coc+(ig$ting. 2$ere(ore t$e ma'orHs &ermits iss%e! to &rivate res&on!ent are n%ll an! voi!. Obvio%sl' t$e =GC !i! not grant t$e &rivate res&on!entDa&&ellant t$e &ro&er registration certi(icate to o&erate $is coc+&it beca%se t$e same ,as not constr%cte! ,it$in t$e a&&ro&riate areas as &rescribe! in Boning la,s or or!inances o( Gingoog Cit' &%rs%ant to )ection G o( -%les an! -eg%lation o( t$e =GC. Gamboa v. Aguirre Facts: *n t$e 188C elections Coscoll%ela Gamboa 7r. an! #g%irre 7r. an! #raneta ,ere electe! Negros Occi!ental Governor KiceD Governor an! )= members res&ectivel'. )ometime in #%g%st o( 188C t$e governor !esignate! Gamboa as #cting Governor (or t$e !%ration o( t$e (ormerHs o((icial tri& abroa! %ntil $is ret%rn. 6$en t$e )= $el! its reg%lar session on )e&tember G 188C #g%irre an!
88

#raneta .%estione! t$e a%t$orit' o( &etitioner to &resi!e t$erein in vie, o( $is !esignation as #cting Governor an! as+e! $im to vacate t$e C$air. Gamboa $o,ever re(%se! to !o so. *n anot$er session seven ;7< members o( t$e )= vote! to allo, &etitioner to contin%e &resi!ing ,$ile (o%r ;0< ot$ers vote! against ,it$ one ;1< abstention. On )e&tember // 188C #P# (ile! be(ore t$e lo,er co%rt a &etition (or !eclator' relie( an! &ro$ibition. *n t$e meantime on October / 188C t$e Governor reDass%me! $is o((ice. Later t$e trial co%rt ren!ere! a !ecision an! !eclare! &etitioner as "tem&oraril' legall' inca&acitate! to &resi!e over t$e sessions o( t$e )= !%ring t$e &erio! t$at $e is t$e #cting Governor." #ggrieve! Gamboa (ile! a &etition (or revie, raising t$e iss%e earlier mentione!. *ss%e: 6ON an inc%mbent KiceDGovernor ,$ile conc%rrentl' t$e #cting Governor contin%e to &resi!e over t$e sessions o( t$e )angg%niang =anlala,igan. )ec. 08;a< an! 0GG;a< ;1< o( t$e LGC &rovi!e t$at t$e KiceDGovernor s$all be t$e &resi!ing o((icer o( t$e )=. *n a!!ition to s%c$ (%nction $e "become;s<" t$e Governor an! "ass%me;s<" t$e $ig$er o((ice (or t$e %ne4&ire! term o( $is &re!ecessor in case o( "&ermanent vacanc'" t$erein. 6$en t$e vacanc' $o,ever is merel' tem&orar' t$e KiceDGovernor "s$all a%tomaticall' e4ercise t$e &o,ers ;s%b9ect to certain limitations< an! &er(orm t$e !%ties an! (%nctions" o( t$e Governor. *t ma' be note! t$at t$e co!e &rovi!es onl' (or mo!es o( s%ccession in case o( &ermanent vacanc' in t$e o((ice o( t$e Governor an! t$e KiceDGovernor ;,$et$er single or sim%ltaneo%sl'< as ,ell as in case o( a tem&orar' vacanc' in t$e o((ice o( t$e Governor. B%t no s%c$ contingenc' is &rovi!e! in case o( tem&orar' vacanc' in t$e o((ice o( t$e KiceDGovernor 9%st li+e t$e 1881 LGC. *t is correct t$at ,$en t$e KiceDGovernor e4ercises t$e "&o,ers an! !%ties" o( t$e O((ice o( t$e Governor $e !oes not ass%me t$e latter o((ice. He onl' "acts" as t$e Governor b%t !oes not "become" t$e Governor. His ass%m&tion o( t$e &o,ers !%ties an! (%nctions o( t$e &rovincial C$ie( 34ec%tive !oes not create a &ermanent vac%%m or vacanc' in $is &osition as t$e KiceDGovernor. Necessaril' $e !oes not relin.%is$ nor aban!on $is &osition an! title as KiceDGovernor b' merel' becoming an #cting Governor ;not Governor< or b' merel' e4ercising t$e &o,ers an! !%ties o( t$e $ig$er o((icer. B%t t$e &roblem is ,$ile in s%c$ ca&acit' !oes $e tem&oraril' relin.%is$ t$e &o,ers (%nctions !%ties an! res&onsibilities o( t$e KiceDGovernor incl%!ing t$e &o,er to &resi!e over t$e sessions o( t$e )=T LGC silent b%t :3). # KiceDGovernor ,$o is conc%rrentl' an #cting Governor is act%all' a .%asiD Governor. 2$is means t$at (or &%r&oses o( e4ercising $is legislative &rerogatives an! &o,ers $e is !eeme! as a nonDmember o( t$e )= (or t$e time being. B' tra!ition t$e o((ices o( t$e &rovincial Governor an! KiceDGovernor are essentiall' e4ec%tive in nat%re ,$ereas &lain members o( t$e &rovincial boar! &er(orm (%nctions &arta+ing o( a legislative c$aracter. 2$is is beca%se t$e a%t$orit' veste! b' la, in t$e &rovincial boar!s involves &rimaril' a !elegation o( some legislative &o,ers o( Congress. @nli+e %n!er t$e ol! Co!e ,$ere t$e Governor is not onl' t$e &rovincial C$ie( 34ec%tive b%t also t$e &resi!ing o((icer o( t$e local legislative bo!' t$e ne, Co!e !elineate! t$e %nion o( t$e e4ec%tiveDlegislative &o,ers in t$e &rovincial cit' an! m%nici&al levels e4ce&t in t$e Baranga'. @n!er -.#. 71G5 t$e Governor ,as !e&rive! o( t$e &o,er to &resi!e over t$e )= an! is no longer consi!ere! a member t$ereo(. 2$is is clear (rom t$e la, ,$en it &rovi!es t$at "local legislative &o,er s$all be veste! in t$e )= " ,$ic$ is "t$e legislative bo!' o( t$e &rovince " an! en%merates t$erein members$i& consisting o( t$e: KiceDGovernor as &resi!ing o((icer reg%lar elective )= members t$ree elective sectoral re&resentatives an! t$ose e4Do((icio members namel' &resi!ent o( t$e &rovincial c$a&ter o( t$e liga ng mga baranga' &resi!ent o( t$e &anlala,igang &e!eras'on ng mga sangg%niang +abataan &resi!ent o( t$e &rovincial (e!eration o( sangg%niang members o( m%nici&alities an! com&onent cities. None being incl%!e! in t$e
155

en%meration t$e Governor is !eeme! e4cl%!e! a&&l'ing t$e r%le in legal $ermene%tics t$at ,$en t$e la, en%merates t$e la, necessaril' e4cl%!es. On t$e contrar' local e4ec%tive &o,er in t$e &rovince is veste! alone in t$e Governor. 11 Conse.%entl' t$e %nion o( legislativeDe4ec%tive &o,ers in t$e o((ice o( t$e local c$ie( e4ec%tive %n!er t$e (ormer Co!e $as been !isban!e! so t$at eit$er !e&artment no, com&rises !i((erent an! nonD intermingling o((icial &ersonalities ,it$ t$e en! in vie, o( ens%ring a better !eliver' o( &%blic service an! &rovi!e a s'stem o( c$ec+ an! balance bet,een t$e t,o. *t $as been $el! t$at i( a Ma'or ,$o is o%t o( t$e contrar' is consi!ere! "e((ectivel' absent" t$e KiceD Ma'or s$o%l! !isc$arge t$e !%ties o( t$e ma'or !%ring t$e latterHs absence. 2$is !octrine s$o%l! e.%all' a&&l' to t$e KiceDGovernor since $e is similarl' sit%ate! as t$e KiceDMa'or. #lt$o%g$ it is !i((ic%lt to la' !o,n a !e(inite r%le as to ,$at constit%tes absence 'et t$is term s$o%l! be reasonabl' constr%e! to mean "e((ective" absence t$at is one t$at ren!ers t$e o((icer concerne! &o,erless (or t$e time being to !isc$arge t$e &o,ers an! &rerogatives o( $is o((ice. 2$ere is no vacanc' ,$enever t$e o((ice is occ%&ie! b' a legall' .%ali(ie! inc%mbent. # sens% contrario t$ere is a vacanc' ,$en t$ere is no &erson la,(%ll' a%t$oriBe! to ass%me an! e4ercise at &resent t$e !%ties o( t$e o((ice. B' virt%e o( t$e (oregoing !e(inition it can be sai! t$at t$e !esignation a&&ointment or ass%m&tion o( t$e KiceDGovernor as t$e #cting Governor creates a corres&on!ing tem&orar' vacanc' in t$e o((ice o( t$e KiceDGovernor !%ring s%c$ contingenc'. Consi!ering t$e silence o( t$e la, on t$e matter t$e mo!e o( s%ccession &rovi!e! (or &ermanent vacancies %n!er t$e ne, Co!e in t$e o((ice o( t$e KiceDGovernor ma' li+e,ise be observe! in t$e event o( tem&orar' vacanc' occ%rring in t$e same o((ice. 2$is is so beca%se in t$e e'es o( t$e la, t$e o((ice to ,$ic$ $e ,as electe! ,as le(t barren o( a legall' .%ali(ie! &erson to e4ercise t$e !%ties o( t$e o((ice o( t$e KiceD Governor. Being t$e #cting Governor t$e KiceDGovernor cannot contin%e to sim%ltaneo%sl' e4ercise t$e !%ties o( t$e latter o((ice since t$e nat%re o( t$e !%ties o( t$e &rovincial Governor call (or a (%llDtime occ%&ant to !isc$arge t$em. )%c$ is not onl' consistent ,it$ b%t also a&&ears to be t$e clear rationale o( t$e ne, Co!e ,$erein t$e &olic' o( &er(orming !%al (%nctions in bot$ o((ices $as alrea!' been aban!one!. 2o re&eat t$e creation o( a tem&orar' vacanc' in t$e o((ice o( t$e Governor creates a corres&on!ing tem&orar' vacanc' in t$e o((ice o( t$e KiceDGovernor ,$enever t$e latter acts as Governor b' virt%e o( s%c$ tem&orar' vacanc'. 2$is event constit%tes an "inabilit'" on t$e &art o( t$e reg%lar &resi!ing o((icer ;Kice Governor< to &resi!e !%ring t$e )= sessions ,$ic$ t$%s calls (or t$e o&eration o( t$e reme!' set in #rticle 08;b< o( t$e LGC S concerning t$e election o( a tem&orar' &resi!ing o((icer. 2$e contin%it' o( t$e #cting GovernorHs ;Kice Governor< &o,ers as &resi!ing o((icer o( t$e )= is s%s&en!e! so long as $e is in s%c$ ca&acit'. @n!er )ection 08;b< ";i<n t$e event o( t$e inabilit' o( t$e reg%lar &resi!ing o((icer to &resi!e at t$e sangg%nian session t$e members &resent an! constit%ting a .%or%m s$all elect (rom among t$emselves a tem&orar' &resi!ing o((icer." Garcia v. COM%L%C Facts: *n its =amba'ang Ma&as'a$an Blg. 15 )er'e 1881 t$e )angg%niang Ba'an ng Morong Bataan agree! to t$e incl%sion o( t$e m%nici&alit' o( Morong as &art o( t$e )%bic )&ecial 3conomic Zone in accor! ,it$ -# 7//7. On Ma' /0 1881 &etitioners (ile! a &etition ,it$ t$e )angg%niang Ba'an o( Morong to ann%l =amba'ang Ma&as'a$an Blg. 15 )er'e 1881 an! so%g$t to allo, t$e incl%sion o( Morong s%b9ect to certain con!itions. 2$e m%nici&alit' o( Morong !i! not ta+e an' action on t$e &etition ,it$in 15 !a's a(ter its s%bmission. =etitioners t$en resorte! to t$eir &o,er o( initiative %n!er t$e LGC. 2$e' starte! to solicit t$e re.%ire! n%mber o( signat%res to ca%se t$e re&eal o( sai!
151

resol%tion. @n+no,n to t$e &etitioners $o,ever t$e Kice Ma'or an! =resi!ing O((icer o( t$e )angg%niang Ba'an ng Morong ,rote a letter !ate! 7%ne 11 1881 to t$e 34ec%tive Director o( COM3L3C re.%esting t$e !enial o( t$e &etition (or a local initiative an!?or re(eren!%m beca%se t$e e4ercise ,ill 9%st &romote !ivisiveness co%nter &ro!%ctivit' an! (%tilit'. *n its session o( 7%l' G 1881 t$e COM3L3C en banc resolve! to !en' t$e &etition (or local initiative on t$e gro%n! t$at its s%b9ect is "merel' a resol%tion ;&amba'ang +a&as'a$an< an! not an or!inance." On 7%l' 11 1881 t$e COM3L3C en banc (%rt$er resolve! to !irect =rovincial 3lection )%&ervisor to $ol! action on t$e a%t$entication o( signat%res being gat$ere! b' &etitioners. COM3L3C o&&ose! t$e &etition. 2$ro%g$ t$e )olicitor General it conten!s t$at %n!er t$e LGC a resol%tion cannot be t$e s%b9ect o( a local initiative. 2$e same stance is ass%me! b' t$e )angg%niang Ba'an o( Morong. *ss%e: 6ON =amba'ang Ma&as'a$an Blg. 15 ser'e 1881 o( t$e )angg%niang Ba'an o( Morong Bataan is t$e &ro&er s%b9ect o( an initiative. -es&: %n!er t$e LGC onl' an or!inance can be t$e s%b9ect o( initiative. section 1/5 C$a&ter / 2itle J* Boo+ *: Local initiative is t$e legal &rocess ,$ereb' t$e registere! voters o( a local government %nit ma' !irectl' &ro&ose enact or amen! an' or!inance. )C: 2$e Constit%tion clearl' incl%!es not onl' or!inances b%t resol%tions as a&&ro&riate s%b9ects o( a local initiative. )ection 1/ o( #rticle K*: "2$e Congress s$all as earl' as &ossible &rovi!e (or a s'stem o( initiative an! re(eren!%m an! t$e e4ce&tions t$ere(rom ,$ereb' t$e &eo&le can !irectl' &ro&ose an! enact la,s or a&&rove or re9ect an' act or la, or &art t$ereo( &asse! b' t$e Congress or local legislative bo!' . . ." #n act incl%!es a resol%tion. Blac+: !e(ines an act as "an e4&ression o( ,ill or &%r&ose . . . it ma' !enote somet$ing !one . . . as a legislat%re incl%!ing not merel' &$'sical acts b%t also !ecrees e!icts la,s 9%!gments resolves a,ar!s an! !eterminations . . . ." *t is basic t$at a la, s$o%l! be constr%e! in $armon' ,it$ an! not in violation o( t$e constit%tion. *n -e G%arina t$at "i( t$ere is !o%bt or %ncertaint' as to t$e meaning o( t$e legislative i( t$e ,or!s or &rovisions are obsc%re or i( t$e enactment is (airl' s%sce&tible o( t,o or more constr%ctions t$at inter&retation ,ill be a!o&te! ,$ic$ ,ill avoi! t$e e((ect o( %nconstit%tionalit' even t$o%g$ it ma' be necessar' (or t$is &%r&ose to !isregar! t$e more %s%al or a&&arent im&ort o( t$e lang%age %se!." 2$e constit%tional comman! to incl%!e acts ;i.e. resol%tions< as a&&ro&riate s%b9ects o( initiative ,as im&lemente! b' Congress ,$en it enacte! -e&%blic #ct No. G71C entitle! "#n #ct =rovi!ing (or a )'stem o( *nitiative an! -e(eren!%m an! #&&ro&riating F%n!s 2$ere(or." 2$%s its section 1;a< e4&ressl' incl%!es resol%tions as s%b9ects o( initiatives on local legislations viB: )ec. 1. De(inition o( 2erms: For &%r&oses o( t$is #ct t$e (ollo,ing terms s$all meanA ;a< "*nitiative" is t$e &o,er o( t$e &eo&le to &ro&ose amen!ments to t$e Constit%tion or to &ro&ose an! enact legislations t$ro%g$ an election calle! (or t$e &%r&ose. 2$ere are t$ree ;1< s'stems o( initiative namel': a.1. *nitiative on t$e Constit%tion ,$ic$ re(ers to a &etition &ro&osing amen!ments to t$e Constit%tion. a./. *nitiative on stat%tes ,$ic$ re(ers to a &etition &ro&osing to enact a national legislationA an! a.1. *nitiative on local legislation ,$ic$ re(ers to a &etition &ro&osing to enact a regional &rovincial cit' m%nici&al or baranga' la, resol%tion or or!inance. )ection 1G: "Limitations @&on Local Legislative Bo!ies F #n' &ro&osition on or!inance or resol%tion a&&rove! t$ro%g$ t$e s'stem o( initiative an! re(eren!%m as $erein &rovi!e! s$all not be re&eale! mo!i(ie! or amen!e! b' t$e local legislative bo!' concerne! ,it$in si4 ;G< mont$s (rom t$e !ate t$ere(rom. On 7an%ar' 1G 1881 t$e COM3L3C also &rom%lgate! its -esol%tion No. /155 entitle! "*n -e -%les an! -eg%lations Governing t$e Con!%ct o( *nitiative on t$e Constit%tion an! *nitiative an! -e(eren!%m on National an! Local La,s." *t li+e,ise recogniBe! resol%tions as &ro&er s%b9ects o( initiatives. )ection C #rticle * o( its -%les states: ")co&e o( &o,er o( initiativeF 2$e &o,er o( initiative ma' be e4ercise! to amen! t$e Constit%tion or to enact a national legislation a regional &rovincial
15/

cit' m%nici&al or baranga' la, resol%tion or or!inance.." 2$ere can $ar!l' be an' !o%bt t$at ,$en Congress enacte! -e&%blic #ct No. G71C it inten! resol%tions to be &ro&er s%b9ects o( local initiatives. -es&on!ents !o not give an' reason ,$' resol%tions s$o%l! not be t$e s%b9ect o( a local initiative. Distinction bet,een a resol%tion an! an or!inance: a resol%tion is %se! ,$enever t$e legislat%re ,is$es to e4&ress an o&inion ,$ic$ is to $ave onl' a tem&orar' e((ect ,$ile an or!inance is inten!e! to &ermanentl' !irect an! control matters a&&l'ing to &ersons or t$ings in general. 2$%s resol%tions are not normall' s%b9ect to re(eren!%m (or it ma' !estro' t$e e((icienc' necessar' to t$e s%ccess(%l a!ministration o( t$e b%siness a((airs o( a cit'. *n t$e case at benc$ $o,ever it cannot be arg%e! t$at t$e s%b9ect matter o( t$e resol%tion o( t$e m%nici&alit' o( Morong merel' tem&oraril' a((ects t$e &eo&le o( Morong (or it !irects a &ermanent r%le o( con!%ct or government. 2$e incl%sion o( Morong as &art o( t$e )%bic )&ecial 3conomic Zone $as (ar reac$ing im&lications in t$e governance o( its &eo&le. 2$is is a&&arent (rom a rea!ing o( section 1/ o( -e&%blic #ct No. 7//7 entitle! "#n #ct #ccelerating t$e Conversion o( Militar' -eservations *nto Ot$er =ro!%ctive @ses Creating t$e Bases Conversion an! Develo&ment #%t$orit' For 2$is =%r&ose =rovi!ing F%n!s 2$ere(or an! For Ot$er =%r&oses." Consi!ering t$e lasting c$anges t$at ,ill be ,ro%g$t in t$e social &olitical an! economic e4istence o( t$e &eo&le o( Morong b' t$e incl%sion o( t$eir m%nici&alit' in t$e )%bic )&ecial 3conomic Zone it is b%t logical to $ear t$eir voice on t$e matter via an initiative. *t is not material t$at t$e !ecision o( t$e m%nici&alit' o( Morong (or t$e incl%sion came in t$e (orm o( a resol%tion (or ,$at matters is its en!%ring e((ect on t$e ,el(are o( t$e &eo&le o( Morong. 2$ro%g$ an initiative t$e &eo&le ,ere also en!o,e! ,it$ t$e &o,er to enact or re9ect an' act or la, b' congress or local legislative bo!'. #rticle K*: )ec. 1. 2$e legislative &o,er s$all be veste! in t$e Congress o( t$e =$ili&&ines ,$ic$ s$all consist o( a )enate an! a Ho%se o( -e&resentatives e4ce&t to t$e e4tent reserve! to t$e &eo&le b' t$e &rovisions on initiative an! re(eren!%m. )ec. 1/. 2$e Congress s$all as earl' as &ossible &rovi!e (or a s'stem o( initiative an! re(eren!%m an! t$e e4ce&tions t$ere(rom ,$ereb' t$e &eo&le can !irectl' &ro&ose an! enact la,s or a&&rove or re9ect an' act or la, or &art t$ereo( &asse! b' t$e Congress or local legislative bo!' a(ter t$e registration o( a &etition t$ere(or signe! b' at least ten &er cent%m o( t$e total n%mber o( registere! voters o( ,$ic$ ever' legislative !istrict m%st be re&resente! b' at least t$ree &er cent%m o( t$e registere! voters t$ereto. (ubic Ba# Metropolitan Authorit# v. COM%L%C Facts: On Marc$ 11 188/ Congress enacte! t$e BCD# ;-# 7//7< ,$ic$ &rovi!e! (or t$e creation o( t$e )%bic 3conomic Zone. *n #&ril 1881 t$e )angg%niang Ba'an o( Morong Bataan &asse! =amba'ang Ma&as'a$an Bilang 15 )er'e 1881 e4&ressing t$erein its absol%te conc%rrence as re.%ire! b' sai! )ec. 1/ o( -# 7//7 to 9oin t$e )%bic )&ecial 3conomic Zone. On )e&tember C 1881 t$e )angg%niang Ba'an o( Morong s%bmitte! =amba'ang Ma&as'a$an Bilang 15 )er'e 1881 to t$e O((ice o( t$e =resi!ent. On Ma' /0 1881 res&on!ents Garcia Calimbas an! t$eir com&anions (ile! a &etition ,it$ t$e )angg%niang Ba'an o( Morong to ann%l =amba'ang Ma&as'a$an Blg. 15 )er'e 1881. 2$e )angg%niang Ba'an ng Morong acte! %&on t$e &etition o( res&on!ents Garcia Calimbas et al. b' &rom%lgating =amba'ang Ma&as'a$an Blg. 18 )er'e 1881 re.%esting Congress o( t$e =$ili&&ines so amen! certain &rovisions o( -# 7//7. Not satis(ie! an! ,it$in 15 !a's (rom s%bmission o( t$eir &etition $erein res&on!ents resorte! to t$eir &o,er initiative %n!er t$e LGC )ec. 1// &aragra&$ ;b< ,$ic$ &rovi!es t$at i( no (avorable action t$ereon is ta+en b' t$e sangg%nian concerne! t$e &ro&onents t$ro%g$ t$eir !%l' a%t$oriBe! an! registere! re&resentatives ma' invo+e t$eir &o,er o( initiative giving notice t$ereo( to t$e sangg%niang concerne!. On 7%l' G 1881 res&on!ent Commission 3n Banc in Comelec -esol%tion No. 81D1G/1 !enie! t$e &etition (or local initiative b' $erein &rivate res&on!ents on t$e gro%n! t$at t$e s%b9ect t$ereo(
151

,as merel' a resol%tion ;&amba'ang +a&as'a$an< an! not an or!inance. On 7%l' 11 1881 &%blic res&on!ent Comelec 3n Banc ;t$r% Comelec -esol%tion no. 81D1G7G< (%rt$er !irecte! its =rovincial 3lection )%&ervisor to $ol! action on t$e a%t$entication o( signat%res being solicite! b' &rivate res&on!ents. On #%g%st 1C 1881 &rivate res&on!ents instit%te! a &etition (or certiorari an! man!am%s be(ore t$is Co%rt against t$e Commission on 3lections an! t$e )angg%niang Ba'an o( Morong Bataan to set asi!e Comelec -esol%tion No. 81D1G/1 inso(ar as it !isallo,e! t$e con!%ct o( a local initiative to ann%l =amba'ang Ma&as'a$an Bilang 15 )er'e 1881 an! Comelec -esol%tion No. 81D1G7G inso(ar as it &revente! t$e =rovincial 3lection )%&ervisor o( Bataan (rom &rocee!ing ,it$ t$e a%t$entication o( t$e re.%ire! n%mber o( signat%res in s%&&ort o( t$e initiative an! t$e gat$ering o( signat%res. On Febr%ar' 1 188C &%rs%ant to )ec. 1/ o( -# 7//7 t$e =resi!ent o( t$e =$ili&&ines iss%e! =roclamation No. C1/ !e(ining t$e metes an! bo%n!s o( t$e ))3Z. )ai! &roclamation incl%!e! in t$e ))3Z all t$e lan!s ,it$in t$e (ormer )%bic Naval Base incl%!ing Gran!e *slan! an! t$at &ortion o( t$e (ormer naval base ,it$in t$e territorial 9%ris!iction o( t$e M%nici&alit' o( Morong. On 7%ne 18 188CG res&on!ent Comelec iss%e! -esol%tion No. /80C a!o&ting t$erein a "Calen!ar o( #ctivities (or local re(eren!%m on certain m%nici&al or!inance &asse! b' t$e )angg%niang Ba'an o( Morong Bataan" an! ,$ic$ in!icate! among ot$ers t$e sc$e!%le! -e(eren!%m Da' ;7%l' /7 188G )at%r!a'<. On 7%ne /7 188G t$e Comelec &rom%lgate! t$e assaile! -esol%tion No. /808 &rovi!ing (or "t$e r%les an! g%i!elines to govern t$e con!%ct o( t$e re(eren!%m &ro&osing to ann%l or re&eal Ma&as'a$an Blg. 15 )er'e 1881 o( t$e )angg%niang Ba'an o( Morong Bataan". On 7%l' 15 188G &etitioner instit%te! t$e &resent &etition (or certiorari an! &ro$ibition contesting t$e vali!it' o( -esol%tion No. /808 an! alleging inter alia t$at &%blic res&on!ent "is intent on &rocee!ing ,it$ a local initiative t$at &ro&oses an amen!ment o( a national la,. . . . *ss%es: 1. 6ON a bar b' (inal 9%!gment e4ists. Garcia conten!s t$at t$is Co%rt $a! alrea!' r%le! ,it$ (inalit' in 3nri.%e 2. Garcia et al. vs. Commission on 3lections et al. on "t$e ver' iss%e raise! in ;t$e< &etition: ,$et$er or not t$ere can be an initiative b' t$e &eo&le o( Morong Bataan on t$e s%b9ect &ro&osition F t$e ver' same &ro&osition it bears em&$asiBing t$e s%bmission o( ,$ic$ to t$e &eo&le o( Morong Bataan is no, so%g$t to be en9oine! b' &etitioner. )C: 2$e onl' iss%e resolve! in t$e earlier Garcia case is ,$et$er a m%nici&al resol%tion as contraD !isting%is$e! (rom an or!inance ma' be t$e &ro&er s%b9ect o( an initiative an!?or re(eren!%m. 2$e sole iss%e &resente! b' t$e &lea!ings ,as t$e .%estion o( ",$et$er or not a )angg%niang Ba'an -esol%tion can be t$e s%b9ect o( a vali! initiative or re(eren!%m" *n t$e &resent case &etitioner is not contesting t$e &ro&riet' o( a m%nici&al resol%tion as t$e (orm b' ,$ic$ t$ese t,o ne, constit%tional &rerogatives o( t$e &eo&le ma' be vali!l' e4ercise!. 6$at is at iss%e $ere is ,$et$er =amba'ang Ma&as'a$an Blg. 15 )er'e 1881 as ,or!e! is s%((icient in (orm an! s%bstance (or s%bmission to t$e &eo&le (or t$eir a&&rovalA in (ine ,$et$er t$e Comelec acte! &ro&erl' an! 9%ri!icall' in &rom%lgating an! im&lementing -esol%tion No. /808. 6ON t$e COM3L3C committe! a grave ab%se o( !iscretion in &rom%lgating an! im&lementing -esol%tion No. /808. :3). 2o begin ,it$ t$e &rocess starte! b' &rivate res&on!ents ,as an *N*2*#2*K3 b%t Comelec ma!e &re&arations (or a -3F3-3ND@M onl'. *n (act in t$e bo!' o( t$e -esol%tion 11 as re&ro!%ce! in t$e (ootnote belo, t$e ,or! "re(eren!%m" is re&eate! at least /7 times b%t "initiative" is not mentione! at all. 2$e Comelec labele! t$e e4ercise as a "-e(eren!%m"A t$e co%nting o( votes ,as entr%ste! to a "-e(eren!%m Committee"A t$e !oc%ments ,ere calle! "re(eren!%m ret%rns"A t$e canvassers "-e(eren!%m Boar! o( Canvassers" an! t$e ballots t$emselves bore t$e !escri&tion "re(eren!%m". 2o re&eat not once ,as t$e ,or! "initiative" %se! in sai! bo!' o( -esol%tion No. /808. #n! 'et t$is e4ercise is %n.%estionabl' an *N*2*#2*K3. "*nitiative" is t$e &o,er o( t$e &eo&le to &ro&ose amen!ments to t$e Constit%tion or to &ro&ose an! enact legislations t$ro%g$ an election calle! (or t$e
150

&%r&ose. 1 s'stems: 1. *nitiative on t$e Constit%tion ,$ic$ re(ers to a &etition &ro&osing amen!ments to t$e Constit%tionA /. *nitiative on stat%tes ,$ic$ re(ers to a &etition &ro&osing to enact a national legislationA an! 1. *nitiative on local legislation ,$ic$ re(ers to a &etition &ro&osing to enact a regional &rovincial cit' m%nici&al or baranga' la, resol%tion or or!inance. "*n!irect initiative" is e4ercise o( initiative b' t$e &eo&le t$ro%g$ a &ro&osition sent to Congress or t$e local legislative bo!' (or action. "-e(eren!%m" is t$e &o,er o( t$e electorate to a&&rove or re9ect a legislation t$ro%g$ an election calle! (or t$e &%r&ose. *t ma' be o( t,o classes namel': 1. -e(eren!%m on stat%tes ,$ic$ re(ers to a &etition to a&&rove or re9ect an act or la, or &art t$ereo( &asse! b' CongressA an! /. -e(eren!%m on local la, ,$ic$ re(ers to a &etition to a&&rove or re9ect a la, resol%tion or or!inance enacte! b' regional assemblies an! local legislative bo!ies. Cr%B: *nitiative D "&o,er o( t$e &eo&le to &ro&ose bills an! la,s an! to enact or re9ect t$em at t$e &olls in!e&en!ent o( t$e legislative assembl'." re(eren!%m D "is t$e rig$t reserve! to t$e &eo&le to a!o&t or re9ect an' act or meas%re ,$ic$ $as been &asse! b' a legislative bo!' an! ,$ic$ in most cases ,o%l! ,it$o%t action on t$e &art o( electors become a la,." LGC: Local initiative is t$e legal &rocess ,$ereb' t$e registere! voters o( local government %nit ma' !irectl' &ro&ose enact or amen! an' or!inance. Local re(eren!%m is t$e legal &rocess ,$ereb' t$e registere! voters o( t$e local government %nits ma' a&&rove amen! or re9ect an' or!inance enacte! b' t$e sangg%nian. 2$e local re(eren!%m s$all be $el! %n!er t$e control an! !irection o( t$e Comelec ,it$in si4t' ;G5< !a's in case o( &rovinces an! cities (ort'D(ive ;0C< !a's in case o( m%nici&alities an! t$irt' ;15< !a's in case o( barangga's. 2$e Comelec s$all certi(' an! &roclaim t$e res%lts o( t$e sai! re(eren!%m. )C: initiative is resorte! to ;or initiate!< b' t$e &eo&le !irectl' eit$er beca%se t$e la,Dma+ing bo!' (ails or re(%ses to enact t$e la, or!inance resol%tion or act t$at t$e' !esire or beca%se t$e' ,ant to amen! or mo!i(' one alrea!' e4isting. @n!er )ec. 11 o( -.#. G71C t$e local legislative bo!' is given t$e o&&ort%nit' to enact t$e &ro&osal. *( it re(%ses?neglects to !o so ,it$in t$irt' ;15< !a's (rom its &resentation t$e &ro&onents t$ro%g$ t$eir !%l'Da%t$oriBe! an! registere! re&resentatives ma' invo+e t$eir &o,er o( initiative giving notice t$ereo( to t$e local legislative bo!' concerne!. )$o%l! t$e &ro&onents be able to collect t$e n%mber o( signe! con(ormities ,it$in t$e &erio! grante! b' sai! stat%te t$e Commission on 3lections "s$all t$en set a !ate (or t$e initiative ;not re(eren!%m< at ,$ic$ t$e &ro&osition s$all be s%bmitte! to t$e registere! voters in t$e local government %nit concerne! . On t$e ot$er $an! in a local re(eren!%m t$e la,D ma+ing bo!' s%bmits to t$e registere! voters o( its territorial 9%ris!iction (or a&&roval or re9ection an' or!inance or resol%tion ,$ic$ is !%l' enacte! or a&&rove! b' s%c$ la,Dma+ing a%t$orit'. )ai! re(eren!%m s$all be con!%cte! also %n!er t$e control an! !irection o( t$e Commission on 3lections. 6$ile initiative is entirel' t$e ,or+ o( t$e electorate re(eren!%m is beg%n an! consente! to b' t$e la,D ma+ing bo!'. *nitiative is a &rocess o( la,Dma+ing b' t$e &eo&le t$emselves ,it$o%t t$e &artici&ation an! against t$e ,is$es o( t$eir electe! re&resentatives ,$ile re(eren!%m consists merel' o( t$e electorate a&&roving or re9ecting ,$at $as been !ra,n %& or enacte! b' a legislative bo!'. Hence t$e &rocess an! t$e voting in an initiative are %n!erstan!abl' more com&le4 t$an in a re(eren!%m ,$ere e4&ecte!l' t$e voters ,ill sim&l' ,rite eit$er ":es" o( "No" in t$e ballot. From t$e above !i((erentiation it (ollo,s t$at t$ere is nee! (or t$e Comelec to s%&ervise an initiative more closel' its a%t$orit' t$ereon e4ten!ing not onl' to t$e co%nting an! canvassing o( votes b%t
15C

also to seeing to it t$at t$e matter or act s%bmitte! to t$e &eo&le is in t$e &ro&er (orm an! lang%age so it ma' be easil' %n!erstoo! an! vote! %&on b' t$e electorate. 2$is is es&eciall' tr%e ,$ere t$e &ro&ose! legislation is lengt$' an! com&licate! an! s$o%l! t$%s be bro+en !o,n into several a%tonomo%s &arts eac$ s%c$ &art to be vote! %&on se&aratel'. Care m%st also be e4ercise! t$at ";n<o &etition embracing more t$an one s%b9ect s$all be s%bmitte! to t$e electorate " alt$o%g$ "t,o or more &ro&ositions ma' be s%bmitte! in an initiative". *n initiative an! re(eren!%m t$e Comelec e4ercises a!ministration an! s%&ervision o( t$e &rocess itsel( a+in to its &o,ers over t$e con!%ct o( elections. 2$ese la,Dma+ing &o,ers belong to t$e &eo&le $ence t$e res&on!ent Commission cannot control or c$ange t$e s%bstance or t$e content o( legislation. *n t$e e4ercise o( its a%t$orit' it ma' ;in (act it s$o%l! $ave !one so alrea!'< iss%e relevant an! a!e.%ate g%i!elines an! r%les (or t$e or!erl' e4ercise o( t$ese "&eo&leD&o,er" (eat%res o( o%r Constit%tion. 6ON 6it$!ra,al o( #!$erence an! *m&osition o( Con!itionalities are @ltra Kires. )C: &remat%reO 2$e m%nici&al resol%tion is still in t$e &ro&osal stage. *t is not 'et an a&&rove! la,. )$o%l! t$e &eo&le re9ect it t$en t$ere ,o%l! be not$ing to contest an! to a!9%!icate. *t is onl' ,$en t$e &eo&le $ave vote! (or it an! it $as become an a&&rove! or!inance or resol%tion t$at rig$ts an! obligations can be en(orce! or im&lemente! t$ere%n!er. #t t$is &oint it is merel' a &ro&osal an! t$e ,rit or &ro$ibition cannot iss%e %&on a mere con9ect%re or &ossibilit'. Constit%tionall' s&ea+ing co%rts ma' !eci!e onl' act%al controversies not $'&ot$etical .%estions or cases. Ortiz v. Posa as Facts: )even o( t$e t$irteen members &resent incl%!ing t$e &resi!ent o( t$e m%nici&al co%ncil o( 2abaco #lba' vote! in (avor o( Or!inance No. /C concerning coc+&its an! si4 members vote! against t$e or!inance ,it$ t$ree members absent. *))@3: 6ON t$e or!inance is vali!. NO. )ection //0 o( t$e #!ministrative Co!e rea!s as (ollo,s: 7o%rnal o( =rocee!ings F Ma9orities necessar' (or transaction o( b%siness. F 2$e co%ncil s$all +ee& a 9o%rnal o( its o,n &rocee!ings. 2$e a'es an! noes s$all be ta+en %&on t$e &assage o( all or!inances %&on all &ro&ositions to create an' liabilit' against t$e m%nici&alit' an! %&on an' ot$er &ro&osition %&on t$e re.%est o( an' member an! t$e' s$all be entere! %&on t$e 9o%rnal. 2$e a((irmative vote o( a ma9orit' o( all t$e members o( t$e m%nici&al co%ncil s$all be necessar' to t$e &assage o( an' or!inance or o( an' &ro&osition creating in!ebte!nessA b%t ot$er meas%res e4ce&t as ot$er,ise s&eciall' &rovi!e! s$all &revail %&on t$e ma9orit' vote o( t$e members &resent at an' meeting !%l' calle! an! $el!. 2$e la, is clear. *t nee!s onl' a&&lication not inter&retation. 6$ile t$e )&anis$ te4t ma' be ambig%o%s t$e 3nglis$ te4t ,$ic$ governs is not. 2$e la, is entirel' consistent in conte4t. 2$e a'es an! noes are ta+en %&on ;1< t$e &assage o( all or!inances ;/< all &ro&ositions to create an' liabilit' against t$e m%nici&alit' an! ;1< an' ot$er &ro&osition %&on t$e re.%est o( an' member. 2$e same i!ea is carrie! into t$e s%ccee!ing sentence. For t$e &assage o( ;1< an' or!inance or ;/< an' &ro&osition creating in!ebte!ness t$e a((irmative vote o( a ma9orit' o( all t$e members o( t$e m%nici&al co%ncil s$all be necessar'. Ot$er meas%res &revail %&on t$e ma9orit' vote o( t$e members &resent "Creating in!ebte!ness" re(ers to "&ro&osition" an! not to "or!inance." 2$e contention t$at onl' or!inances creating in!ebte!ness re.%ire t$e a&&roval o( a ma9orit' o( all t$e members o( t$e m%nici&al co%ncil is !evoi! o( merit. Corroborative a%t$orit' is reall' s%&er(l%o%s. Nevert$eless ,e ,o%l! invite attention to t$e case o( McLean vs. Cit' o( 3ast )t. Lo%is ;U185GV /// *ll.
15G

C15<. )ection 11 o( t$e #ct (or t$e incor&oration o( cities an! villages in t$e )tate o( *llinois &rovi!e!: "2$e 'eas an! na's s$all be ta+en %&on t$e &assage o( all or!inances an! on all &ro&ositions to create an' liabilit' against t$e cit' or (or t$e e4&en!it%re or a&&ro&riation o( its mone' an! in all ot$er cases at t$e re.%est o( an' member ,$ic$ s$all be entere! on t$e 9o%rnal o( its &rocee!ingsA an! t$e conc%rrence o( a ma9orit' o( all t$e members electe! in t$e cit' co%ncil s$all be necessar' to t$e &assage o( an' s%c$ or!inance or &ro&osition: =rovi!e! it s$all re.%ire t,oDt$ir!s o( all t$e al!ermen elect to sell an' cit' or sc$ool &ro&ert'" Commenting on t$is &rovision o( la, t$e )%&reme Co%rt o( *llinois t$ro%g$ 7%stice Cart,rig$t observe!: )ome o( t$e co%nsel (or a&&ellee arg%e t$at section 11 relates onl' to or!inances an! &ro&ositions creating a liabilit' against a cit' or &rovi!ing (or t$e e4&en!it%re or a&&ro&riation o( its mone' an! t$at all ot$er or!inances ma' be &asse! b' a ma9orit' o( a .%or%m. 2$e' sa' t$at it is not %n%s%al (or co%rts in t$e constr%ction o( stat%tes to s%bstit%te one ,or! (or anot$er ,$ere t$e &lain meaning o( t$e stat%te ,ill 9%sti(' it an! t$at b' eliminating some ,or!s an! s%bstit%ting ot$ers t$is section ,ill e4&ress ,$at t$e' t$in+ ,as t$e intention o( t$e legislat%re. *t is t$e r%le t$at ,$ere t$e intention o( t$e legislat%re is ascertaine! ,it$ reasonable certaint' an! it a&&ears t$at ,or!s $ave been %se! inconsistent ,it$ s%c$ intention a ,or! erroneo%sl' %se! (or anot$er ma' be eliminate! an! t$e &ro&er ,or! s%bstit%te!. 6$ere t$e conte4t a((or!s t$e means o( correcting a mista+e in t$e %se o( lang%age t$e correction ma' be ma!e (or t$e &%r&ose o( giving e((ect to t$e intention &lainl' mani(este! in t$e act as a ,$ole. B%t ,e !o not agree ,it$ t$e t$eor' t$at t$e legislat%re in t$is instance inten!e! to limit t$e re.%irement o( a ma9orit' vote to or!inances creating a liabilit' or a&&ro&riating mone'. *n o%r o&inion to ma+e t$e c$anges s%ggeste! ,o%l! be merel' 9%ggling ,it$ t$e ,or!s o( t$e stat%te to give it a !i((erent meaning (rom t$at ,$ic$ ,as inten!e!. 2$e la, t$e &assage o( all or!inances an! t$e conc%rrence o( a ma9orit' o( t$e legislative bo!' is necessar' to t$eir &assage. 6e recogniBe! t$at constr%ction o( t$e stat%te in Hibbar! P Co. vs. Cit' o( C$icago 171 *ll. 81. *( a &ro&osition not in t$e (orm o( an or!inance creates an' liabilit' or &rovi!es (or t$e e4&en!it%re or a&&ro&riation o( mone' t$e re.%irement is t$e same ,$ile as to ot$er &ro&ositions ,$et$er t$e 'eas an! na's are entere! %&on t$e 9o%rnal or not t$e ma9orit' o( a .%or%m is s%((icient. 2$e basic i!ea o( t$e legislative bo!' to ma+e im&ossible t$e a&&roval o( or!inances or o( &ro&ositions creating in!ebte!ness b' minorit' votes o( m%nici&al co%ncils at meetings $astil' calle! is ,ise. Legislative intention s$o%l! be e((ect%ate!. )ection ///0 o( t$e #!ministrative Co!e re.%iring in man!ator' lang%age t$e a((irmative vote o( a ma9orit' o( all t$e members o( t$e m%nici&al co%ncil (or t$e &assage o( an' or!inance ,$et$er or not an or!inance creating in!ebte!ness an or!inance &asse! b' less t$an t$at ma9orit' is invali!. Or!inance No. /C o( 2abaco #lba' is voi!. Cit# o! Manila v. Laguio Facts: 2$e Malate 2o%rist Develo&ment Cor&oration ;M2DC< b%ilt an! o&ene! Kictoria Co%rt in Malate ,$ic$ ,as license! as a motel alt$o%g$ !%l' accre!ite! ,it$ t$e DO2C as a $otel. M2DC (ile! a &etition (or !eclarator' relie( against t$e Cit' o( Manila Lim ;ma'or< #tienBa ;viceDma'or< an! t$e members o( t$e cit' co%ncil o( Manila &ra'ing t$at t$e Or!inance t$e' enacte! ,$ic$ &ro$ibite! motels an! inns be !eclare! %nconstit%tional. 2$e Or!inance &ro$ibite! t$e establis$ment or o&eration o( b%sinesses &rovi!ing am%sement services or entertainment ,$ere ,omen are %se! as tools in entertainment an! ,$ic$ ten! to !ist%rb t$e comm%nit' anno' t$e in$abitants an! a!versel' a((ect t$e social an! moral ,el(are o( t$e comm%nit' in t$e 3rmitaDMalate area. )%c$ b%sinesses incl%!e sa%na &arlors massage &arlors +arao+e bars cl%bs !ance $alls motels an! inns. M2DC: Motels an! inns s$o%l! not $ave been &ro$ibite! as t$e' are not establis$ments (or am%sement or entertainmentA neit$er ,ere
157

t$e' services or (acilities (or entertainment an! !i! not %se ,omen as tools etc. #lso t$e Or!inance ,as %nconstit%tional an! voi! beca%se ;1< 2$e Cit' Co%ncil $as no &o,er to &ro$ibit t$e o&eration o( motels as t$e LGC grante! onl' t$e &o,er to reg%late t$e establis$ment o&eration an! maintenance o( motels etc. ;/< *t is violative o( =D 088 ,$ic$ !eclare! &ortions o( t$e 3rmitaDMalate area as a commercial Bone ,it$ restrictions ;1< *t is not a &ro&er e4ercise o( &olice &o,er as t$ere is no relation to legitimate m%nici&al interests so%g$t to be &rotecte! ;0< *t is an e4 &ost (acto la, an! ;C< *t violates M2DC>s constit%tional rig$ts con(iscator' an! is an invasion o( &ro&ert' rig$ts also violates t$e e.%al &rotection cla%se. Manila: 2$e Cit' Co%ncil $a! t$e &o,er to &ro$ibit certain (orms o( entertainment in or!er to &rotect t$e social an! moral ,el(are o( t$e comm%nit' as &rovi!e! in )ec. 0C8 ;a< 0 ;vii< o( t$e LGC. M,ong )ing vs. Cit' o( Manila: &o,er o( reg%lation incl%!es t$e &o,er to control govern an! restrain &laces o( e4$ibition an! am%sement. 2$is is also in con9%nction ,it$ its &olice &o,er as (o%n! in -evise! C$arter o( Manila. 7%!ge Lag%io iss%e! an e4D&arte 2-O against t$e en(orcement o( t$e Or!inance. #(ter trial $e ren!ere! a !ecision en9oining t$e Cit' o( Manila (rom im&lementing t$e Or!inance. 2$e Cit' o( Manila t$en (ile! a &etition assailing t$e Decision ren!ere! b' Lag%io. *ss%e: 6ON t$e Or!inance is %nconstit%tional. :3). 2o be vali! an or!inance m%st con(orm to t$e (ollo,ing s%bstantive re.%irements: ;1< *t m%st not contravene t$e Constit%tion or an' stat%teA ;/< M%st not be %n(air or o&&ressiveA ;1< M%st not be &artial or !iscriminator'A ;0< M%st not &ro$ibit b%t ma' reg%late tra!eA ;C< M%st be general an! consistent ,it$ &%blic &olic'A ;C< M%st not be %nreasonable. #s regar!s t$e (irst criterion t$ere are / re.%irements: *t m%st &ass m%ster %n!er t$e test o( constit%tionalit' an! t$e test o( consistenc' ,it$ &revailing la,s. LG@s are able to legislate onl' b' virt%e o( t$eir !erivative legislative &o,er a !elegation o( legislative &o,er (rom Congress. 2$e !elegate cannot be s%&erior to t$e &rinci&al. 2$e means em&lo'e! b' t$e Or!inance (or t$e ac$ievement o( its &%r&oses t$e governmental inter(erence itsel( in(ringes on t$e constit%tional g%arantees o( a &ersonHs (%n!amental rig$t to libert' an! &ro&ert'. Motel &atrons ,$o are single an! %nmarrie! ma' invo+e t$is rig$t to a%tonom' to cons%mmate t$eir bon!s in intimate be it stresse! t$at t$eir se4%al con!%ct ,it$in t$e motelHs &remises consens%al se4%al be$avior !oes not contravene an' (%n!amental state &olic' as containe! in t$e Constit%tion. #!%lts $ave a rig$t to c$oose to (orge s%c$ relations$i&s ,it$ ot$ers in t$e con(ines o( t$eir o,n &rivate lives an! still retain t$eir !ignit' as (ree &ersons. 2$eir rig$t to libert' %n!er t$e !%e &rocess cla%se gives t$em t$e (%ll rig$t to engage in t$eir con!%ct ,it$o%t intervention o( t$e government as long as t$e' !o not r%n a(o%l o( t$e la,. Libert' s$o%l! be t$e r%le an! restraint t$e e4ce&tion. Libert' in t$e constit%tional sense not onl' means (ree!om (rom %nla,(%l government restraintA it m%st incl%!e &rivac' as ,ell i( it is to be a re&ositor' o( (ree!om. 2$e rig$t to be let alone it is t$e most com&re$ensive o( rig$ts an! is t$e beginning o( all (ree!om an! t$e rig$t most val%e! b' civiliBe! men. 2$e rig$t to &rivac' is a constit%tional rig$t t$e invasion o( ,$ic$ s$o%l! be 9%sti(ie! b' a com&elling state interest. 2$e Or!inance ,as &asse! b' t$e Cit' Co%ncil in t$e e4ercise o( its &olice &o,er as (o%n! in )ec. 1G o( t$e LGC. 2$is &olice &o,er ,$ile (arDreac$ing is s%bor!inate to constit%tional limitations t$e e4ercise m%st be reasonable an! (or t$e &%blic goo!. 2$e Or!inance violates t$e 1887 Constit%tion t$e relevant &rovisions o( ,$ic$ are #rt. ** )ecs. C an! 10 an! #rt. *** )ecs. 1 an! 8. 2o be constit%tional t$e e4ercise o( &olice &o,er not onl' m%st it a&&ear t$at t$e interests o( t$e &%blic generall' as !isting%is$e! (rom t$ose o( a &artic%lar class re.%ire an inter(erence ,it$ &rivate rig$ts b%t t$e means a!o&te! m%st be reasonabl' necessar' (or t$e accom&lis$ment o( t$e &%r&ose an! not %n!%l' o&&ressive %&on in!ivi!%als. *t m%st be evi!ent t$at no ot$er alternative (or t$e accom&lis$ment o( t$e &%r&ose less intr%sive o(
158

&rivate rig$ts can ,or+. # reasonable relation m%st e4ist bet,een t$e &%r&oses o( t$e &olice meas%re an! t$e means em&lo'e! (or its accom&lis$ment. *n t$is case t$e means em&lo'e! is o&&ressive an! %nreasonable. 2$e Or!inance ,as enacte! to a!!ress an! arrest t$e social ills &%r&orte!l' s&a,n as it s%bstantiall' !ivests t$e res&on!ent o( t$e bene(icial %se o( its &ro&ert'. 2$e Or!inance in )ection 1 (orbi!s t$e r%nning o( t$e en%merate! b%sinesses in t$e 3rmitaD Malate area an! in )ection 1 instr%cts its o,ners?o&erators to ,in! %& b%siness o&erations or to trans(er o%tsi!e t$e area or convert sai! b%sinesses into allo,e! b%sinesses. #n or!inance ,$ic$ &ermanentl' restricts t$e %se o( &ro&ert' t$at it cannot be %se! (or an' reasonable &%r&ose goes be'on! reg%lation an! m%st be recogniBe! as a ta+ing o( t$e &ro&ert' ,it$o%t 9%st com&ensation. *t is intr%sive an! violative o( t$e &rivate &ro&ert' rig$ts o( in!ivi!%als. 2$e Cit' o( Manila cannot ta+e re(%ge in classi('ing t$e meas%re as a Boning or!inance. # Boning or!inance alt$o%g$ a vali! e4ercise o( &olice &o,er ,$ic$ limits a ",$olesome" &ro&ert' to a %se ,$ic$ cannot reasonabl' be ma!e o( it constit%tes t$e ta+ing o( s%c$ &ro&ert' ,it$o%t 9%st com&ensation. =rivate &ro&ert' ,$ic$ is not no4io%s or inten!e! (or no4io%s &%r&oses ma' not b' Boning be !estro'e! ,it$o%t com&ensation. Distinction s$o%l! be ma!e bet,een !estr%ction (rom necessit' an! eminent !omain. =ro&ert' ta+en in t$e e4ercise o( &olice &o,er is !estro'e! beca%se it is no4io%s or inten!e! (or a no4io%s &%r&ose ,$ile t$e &ro&ert' ta+en %n!er t$e &o,er o( eminent !omain is inten!e! (or a &%blic %se or &%r&ose an! is t$ere(ore ",$olesome." *( it be o( &%blic bene(it t$at a ,$olesome &ro&ert' remains %n%se! or relegate! to a &artic%lar &%r&ose t$en certainl' t$e &%blic s$o%l! bear t$e cost o( reasonable com&ensation (or t$e con!emnation o( &rivate &ro&ert' (or &%blic %se! b' t$e establis$ments in t$e 3rmitaDMalate area.
2$e closing !o,n an! trans(er o( b%sinesses or t$eir

conversion into b%sinesses allo,e! %n!er t$e Or!inance $ave no reasonable relation to t$e accom&lis$ment o( its &%r&oses. 2$e Cit' Co%ncil instea! s$o%l! reg%late $%man con!%ct t$at occ%rs insi!e t$e establis$ments b%t not to t$e !etriment o( libert' an! &rivac' ,$ic$ are covenants &remi%ms an! blessings o( !emocrac'. D%e &rocess (%rnis$es a stan!ar! to ,$ic$ governmental action s$o%l! con(orm in or!er t$at !e&rivation o( li(e libert' or &ro&ert' is vali!. 2$e Or!inance (ails to set %& an' stan!ar! to g%i!e or limit t$e &etitionersH actions. *t in no ,a' controls or g%i!es t$e !iscretion veste! in t$em. *t &rovi!es no !e(inition o( t$e establis$ments covere! b' it an! it (ails to set (ort$ t$e con!itions ,$en t$e establis$ments come ,it$in its ambit o( &ro$ibition. 2$e Or!inance con(ers %&on t$e ma'or arbitrar' an! %nrestricte! &o,er to close !o,n establis$ments. Or!inances &lacing restrictions %&on t$e la,(%l %se o( &ro&ert' m%st in or!er to be vali! an! constit%tional s&eci(' t$e r%les an! con!itions to be observe! an! con!%ct to avoi!A an! m%st not a!mit o( t$e e4ercise or o( an o&&ort%nit' (or t$e e4ercise o( %nbri!le! !iscretion b' t$e la, en(orcers in carr'ing o%t its &rovisions. )imilarl' t$e Or!inance !oes not s&eci(' t$e stan!ar!s to ascertain ,$ic$ establis$ments "ten! to !ist%rb t$e comm%nit' " "anno' t$e in$abitants " an! "a!versel' a((ect t$e social an! moral ,el(are o( t$e comm%nit'." 2$ere are no com&re$ensible stan!ar!s to g%i!e t$e la, en(orcers in carr'ing o%t its &rovisions. 3.%al &rotection re.%ires t$at all &ersons or t$ings similarl' sit%ate! s$o%l! be treate! ali+e bot$ as to rig$ts con(erre! an! res&onsibilities im&ose!. )imilar s%b9ects in ot$er ,or!s s$o%l! not be treate! !i((erentl' so as to give %n!%e (avor to some an! %n9%stl' !iscriminate against ot$ers. Legislative bo!ies are allo,e! to classi(' t$e s%b9ects o( legislation. *( t$e classi(ication is reasonable t$e la, ma' o&erate onl' on some an!
158

not all o( t$e &eo&le ,it$o%t violating t$e e.%al &rotection cla%se. 2$e classi(ication m%st as an in!is&ensable re.%isite not be arbitrar'. 2o be vali! it m%st con(orm to t$e (ollo,ing re.%irements:1< *t m%st be base! on s%bstantial !istinctions. /< *t m%st be germane to t$e &%r&oses o( t$e la,. 1< *t m%st not be limite! to e4isting con!itions onl'. 0< *t m%st a&&l' e.%all' to all members o( t$e class. #ccor!ing to t$e )C: ;1< No s%bstantial !istinctions bet,een motels inns &ension $o%ses $otels lo!ging $o%ses an! ot$er similar establis$ments. #ll are commercial establis$ments &rovi!ing lo!ging. 2$e classi(ication is t$%s invali! ;similar s%b9ects are not similarl' treate!< an! arbitrar' ;it !oes not rest on s%bstantial !istinctions bearing a 9%st an! (air relation to t$e &%r&ose o( t$e Or!inance< ;/< No logic (or &ro$ibiting t$e b%siness an! o&eration o( motels in t$e 3rmitaDMalate area b%t not o%tsi!e o( t$is area. ;1< 2$e stan!ar! ",$ere ,omen are %se! as tools (or one o( t$e $inte! entertainment" is also !iscriminator' as &rostit%tion ills t$e Or!inance is not a &ro(ession e4cl%sive aims to banis$ to ,omen. Bot$ men an! ,omen $ave an e.%al &ro&ensit' to engage in &rostit%tion. 2$is !iscrimination base! on gen!er violates e.%al &rotection as it is not s%bstantiall' relate! to im&ortant government ob9ectives. #s to consistenc' ,it$ &revailing la,s: ;1< 2$e Or!inance contravenes t$e LGC. @n!er t$e LGC LG@s are em&o,ere! to reg%late an! not &ro$ibit t$e establis$ments en%merate! in )ec. 1 o( t$e Or!inance. 2$e &o,er o( t$e Cit' Co%ncil to reg%late b' or!inances t$e establis$ment o&eration an! maintenance o( motels $otels an! ot$er similar establis$ments is (o%n! in )ection 0C8 ;a< 0 ;iv< ,$ile its &o,er to reg%late t$e establis$ment o&eration an! maintenance o( an' entertainment or am%sement (acilities an! to &ro$ibit certain (orms o( am%sement or entertainment is &rovi!e! %n!er )ection 0C8 ;a< 0 ;vii<. Clearl' t$en t$e onl' &o,er o( t$e Cit' Co%ncil to legislate relative to t$ese establis$ments is to reg%late t$em to &romote t$e general ,el(are. 2$e Co!e still ,it$$ol!s (rom cities t$e &o,er to s%&&ress an! &ro$ibit altoget$er t$e establis$ment o&eration an! maintenance o( s%c$ establis$ments. 2$e ,or! reg%late incl%!es t$e &o,er to control govern an! restrain b%t it s$o%l! not be constr%e! as s'non'mo%s ,it$ s%&&ress or &ro$ibit. #s a general r%le ,$en a m%nici&al cor&oration is s&eci(icall' given a%t$orit' or &o,er to reg%late or to license an! reg%late t$e li.%or tra((ic &o,er to &ro$ibit is im&lie!l' ,it$$el!. Congress %ne.%ivocabl' s&eci(ie! t$e establis$ments an! (orms o( am%sement or entertainment s%b9ect to reg%lation among ,$ic$ are beer$o%ses $otels motels inns &ension $o%ses lo!ging $o%ses an! ot$er similar establis$ments ;)ection 0C8 ;a< 0 ;iv<< &%blic !ancing sc$ools &%blic !ance $alls sa%na bat$s massage &arlors an! ot$er &laces (or entertainment or am%sement ;)ection 0C8 ;a< 0 ;vii<<. 2$is en%meration t$ere(ore cannot be incl%!e! as among "ot$er events or activities (or am%sement or entertainment &artic%larl' t$ose ,$ic$ ten! to !ist%rb t$e comm%nit' or anno' t$e in$abitants" or "certain (orms o( am%sement or entertainment" ,$ic$ t$e Cit' Co%ncil ma' s%s&en! s%&&ress or &ro$ibit. 2$e r%le is t$at t$e Cit' Co%ncil $as onl' s%c$ &o,ers as are e4&ressl' grante! to it an! t$ose ,$ic$ are necessaril' im&lie! or inci!ental to t$e e4ercise t$ereo(. B' reason o( its limite! &o,ers an! t$e nat%re t$ereo( sai! &o,ers are to be constr%e! strictissimi 9%ris an! an' !o%bt or ambig%it' arising o%t o( t$e terms %se! in granting sai! &o,ers m%st be constr%e! against t$e Cit' Co%ncil. Moreover it is a general r%le in stat%tor' constr%ction t$at t$e e4&ress mention o( one &erson t$ing or conse.%ence is tantamo%nt to an e4&ress e4cl%sion o( all ot$ers. #lso t$e Co!e being a later e4&ression o( t$e legislative ,ill m%st necessaril' &revail an! overri!e t$e earlier la, t$e -evise! C$arter o( Manila. #s
115

bet,een t,o la,s on t$e same s%b9ect matter ,$ic$ are irreconcilabl' inconsistent t$at ,$ic$ is &asse! later &revails since it is t$e latest e4&ression o( legislative ,ill. *n a!!ition )ection C10;(< o( t$e Co!e states t$at "#ll general an! s&ecial la,s acts cit' c$arters !ecrees e4ec%tive or!ers &roclamations an! a!ministrative reg%lations or &art or &arts t$ereo( ,$ic$ are inconsistent ,it$ an' o( t$e &rovisions o( t$is Co!e are $ereb' re&eale! or mo!i(ie! accor!ingl'." 2$%s s%bmitting to &etitionersH inter&retation t$at t$e -evise! C$arter o( Manila em&o,ers t$e Cit' Co%ncil to &ro$ibit motels t$at &ortion o( t$e C$arter stating s%c$ m%st be consi!ere! re&eale! b' t$e Co!e as it is at variance ,it$ t$e latterHs &rovisions granting t$e Cit' Co%ncil mere reg%lator' &o,ers. Manila also cannot see+ cover %n!er t$e general ,el(are cla%se a%t$oriBing t$e abatement o( n%isances ,it$o%t 9%!icial &rocee!ings. 2$at tenet a&&lies to a n%isance &er se or one ,$ic$ a((ects t$e imme!iate sa(et' o( &ersons an! &ro&ert' an! ma' be s%mmaril' abate! %n!er t$e %n!e(ine! la, o( necessit'. *t cannot be sai! t$at motels are in9%rio%s to t$e rig$ts o( &ro&ert' $ealt$ or com(ort o( t$e comm%nit'. *t is a legitimate b%siness. *( it be a n%isance &er acci!ens it ma' be so &roven in a $earing con!%cte! (or t$at &%r&ose. # motel is not &er se a n%isance ,arranting its s%mmar' abatement ,it$o%t 9%!icial intervention. 2$e Cit' Co%ncil ,as con(erre! &o,ers to &revent an! &ro$ibit certain activities an! establis$ments in )ection 0C8 ;1< ;v<. *( it ,ere t$e intention o( Congress to con(er %&on t$e Cit' Co%ncil t$e &o,er to &ro$ibit t$e establis$ments en%merate! in )ection 1 o( t$e Or!inance it ,o%l! $ave so !eclare! in %ncertain terms b' a!!ing t$em to t$e list o( t$e matters it ma' &ro$ibit %n!er t$e aboveD .%ote! )ection. 2$e Or!inance no, vainl' attem&ts to l%m& t$ese establis$ments ,it$ $o%ses o( illD re&%te an! e4&an! t$e Cit' Co%ncilHs &o,ers in t$e secon! an! t$ir! cla%ses o( )ection 0C8 ;a< 0 ;vii< o( t$e Co!e in an e((ort to overreac$ its &ro$ibitor' &o,ers. *t is evi!ent t$at t$ese establis$ments ma' onl' be reg%late! in t$eir establis$ment o&eration an! maintenance. *t is im&ortant to !isting%is$ t$e &%nis$able activities (rom t$e establis$ments t$emselves. 2$at t$ese establis$ments are recogniBe! legitimate enter&rises can be gleane! (rom anot$er )ection o( t$e Co!e. )ection 111 %n!er t$e 2itle on Local Government 2a4ation e4&ressl' mentione! &ro&rietors or o&erators o( massage clinics sa%na 2%r+is$ an! ),e!is$ bat$s $otels motels an! lo!ging $o%ses as among t$e "contractors" !e(ine! in &aragra&$ ;$< t$ereo(. 2$e same )ection also !e(ine! "am%sement" as a "&leas%rable !iversion an! entertainment " "s'non'mo%s to rela4ation avocation &astime or (%nA" an! "am%sement &laces" to incl%!e "t$eaters cinemas concert $alls circ%ses an! ot$er &laces o( am%sement ,$ere one see+s a!mission to entertain onesel( b' seeing or vie,ing t$e s$o, or &er(ormances." 2$%s it can be in(erre! t$at t$e Co!e consi!ers t$ese establis$ments as legitimate enter&rises an! activities. ;/< 2$e Or!inance also contravenes t$e &rovisions o( =.D. 088. #s correctl' arg%e! b' M2DC t$e stat%te $a! alrea!' converte! t$e resi!ential 3rmitaDMalate area into a commercial area. 2$e !ecree allo,e! t$e establis$ment an! o&eration o( all +in!s o( commercial establis$ments e4ce&t ,are$o%se or o&en storage !e&ot !%m& or 'ar! motor re&air s$o& gasoline service station lig$t in!%str' ,it$ an' mac$iner' or (%neral establis$ment. 2$e r%le is t$at (or an or!inance to be vali! an! to $ave (orce an! e((ect it m%st not onl' be ,it$in t$e &o,ers o( t$e co%ncil to enact b%t t$e same m%st not be in con(lict ,it$ or re&%gnant to t$e general la,. Perez v. e la Cruz
Facts: *n 18G8 !%ring a &rivate con(erence $el! at t$e o((ice o( t$e &etitioner Naga viceDma'or =ereB ,it$ 7 co%ncilors t$e matter o(
111

selecting t$e secretar' o( t$e m%nici&al boar! o( t$e cit' as ,ell as t$e c$airmen o( t$e vario%s stan!ing committees came %& (or !isc%ssion. #t t$e in!ication b' t$e 0 Nacionalista =art' co%ncilors o( t$eir !esire to vote (or a &artic%lar &erson as secretar' o( t$e boar! an! to $ol! t$e c$airmans$i& o( t$e committee on mar+ets (or one o( t$em =ereB e4&resse! $er intention to vote in t$e !eliberation o( s%c$ matters to create a tie vote an! to t$en e4ercise $er &o,er to brea+ s%c$ !ea!loc+. 2$e (o%r a(oresai! co%ncilors (ile! ,it$ t$e Co%rt o( First *nstance o( Camarines )%r a &etition (or &ro$ibition ,it$ ,rit o( &reliminar' in9%nction to &revent =ereB (rom casting $er vote in t$e selection o( t$e secretar' o( t$e m%nici&al boar! an! in t$e c$oice o( c$airmen an! members o( t$e !i((erent stan!ing committees e4ce&t in t$e event o( a tie vote an! (rom voting on an' legislative &ro&osal or meas%re or in an' &rocee!ing o( t$e sai! boar! e4ce&t ,$en t$e members t$ereo( are e.%all' !ivi!e!. -es&on!ents allege! t$at t$e viceDma'or o( Naga Cit' is not a member o( t$e m%nici&al boar! b%t onl' its &resi!ing o((icer. # ,rit ,as iss%e! $ence viceDma'or =ereB assaile! t$e iss%ance o( t$e ,rit as %n!%e inter(erence in matters &%rel' legislative in c$aracter at t$e same time t$at s$e !enie! t$e e4istence o( a t$reatene! invasion o( t$e rig$ts o( t$e (o%r co%ncilors. )%bse.%entl' Liberal co%ncilors &asse! an amen!ment to t$e -%les o( =roce!%re o( t$e Naga m%nici&al boar! granting t$e c$airman t$ereo( t$e rig$t to vote as a member an! as &resi!ing o((icer t$e rig$t to vote again in case o( a tie. *ss%es: 1. 6ON t$e viceDma'or o( Naga cit' besi!es being t$e &resi!ing o((icer o( t$e m%nici&al boar! also a member t$ereo(T NO. %&on a&&roval o( -e&%blic #ct //C8 1 ma+ing elective t$e o((ices o( ma'or viceDma'or an! co%ncilors in c$artere! cities t$e &osition o( viceD ma'or among ot$ers ,as create!. 2$%s section 1 o( sai! la, &rovi!es: 2$e &osition o( KiceDMa'or is $ereb' create! in c$artere! cities ,$ic$ at &resent $ave no &osition (or KiceDMa'or b' &rovision o( t$eir cor&orate c$arters: =rovi!e! 2$at t$e KiceDMa'or s$all be t$e &resi!ing o((icer o( t$e Cit' Co%ncil or M%nici&al Boar! in all c$artere! cities. =ereB no, conten!s t$at since %n!er t$e Naga Cit' c$arter t$e ma'or ,as t$e &resi!ing o((icer o( t$e m%nici&al boar! an! since %n!er -e&%blic #ct //C8 creating t$e &osition o( viceDma'or ,$o ,as ma!e t$e &resi!ing o((icer t$e viceDma'or sim&l' re&lace! t$e ma'or as "&resi!ing o((icer" o( t$e m%nici&al boar! t$e viceDma'or ac.%ire! all t$e rig$ts an! &rerogatives o( t$e &resi!ing o((icer %n!er t$e c$arter one o( ,$ic$ is "members$i& in t$e m%nici&al boar!." W%iem v. )eriRa: t$e silence o( -e&. #ct //C8 on ,$et$er t$e viceDma'or t$e &resi!ing o((icer is a member o( t$e boar! ,as not eno%g$ gro%n! (or e4cl%!ing t$e viceDma'or (rom members$i& in t$e boar!. B%t t$e legal setting an! &remises in W%iem are ,i!el' !is&arate (rom t$ose in t$e case at bar. *n t$e (irst &lace in W%iem ,e (o%n! t$at "b' e4&ress legal man!ate t$e viceDma'or o( Caga'an !e Oro Cit' is a member o( t$e boar!" beca%se "t$at cit'Hs original c$arters calls (or an a&&ointive KiceD Ma'or ,$o Hs$all be a member o( t$e M%nici&al Boar!H." *n t$e case at bar $o,ever in contrast ,it$ sec. 11 o( -e&%blic #ct C/1 creating t$e cit' o( Caga'an !e Oro ,$ic$ e4&licitl' ma!e t$e viceD ma'or a member o( t$e m%nici&al boar! section 11 o( -e&%blic #ct 15C creating t$e Cit' o( Naga (aile! to &rovi!e even (or t$e &osition o( viceDma'or. *n t$e secon! &lace -e&%blic #ct 11/C 15 &artic%larl' section 1 t$ereo( amen!ing t$e Caga'an !e Oro c$arter e4&ressl' reiterate! t$at t$e viceDma'or "s$all be a member o( t$e M%nici&al Boar!A" as s%c$ similar stat%tor' basis can be cogentl' invo+e! (or t$e &etitioner =ereB. Bagasao et al. vs. 2%mangan: t$e viceDma'or "as t$e &resi!ing o((icer o( t$e M%nici&al Boar! o( t$e Cit' o( Cabanat%an is a member t$ereo(" an! "$e ma' e4ercise $is rig$t to vote as a member on an' &ro&ose! or!inance resol%tion or motion." B%t ,e so $el! beca%se "bot$ t$e %namen!e! an! amen!e! &rovisions o( section 11 o( t$e C$arter o( t$e Cit' o( Cabanat%an &rovi!e t$at t$e &resi!ing o((icer o( t$e M%nici&al Boar! is a member t$ereo(. #n! as ,e $ave re re&eate!l' state! t$ere is no &rovision ,$atever in -e&%blic #ct 15C creating t$e Cit' o( Naga t$at &rovi!es (or t$e &osition o( viceD
11/

ma'orA an! t$e amen!ator' &rovisions o( -e&%blic #ct //C8 ma+ing t$e viceDma'or t$e &resi!ing o((icer o( t$e m%nici&al boar! !oes not ma+e $im a constit%ent member t$ereo(. =aragra&$ ;g< o( -%le *** o( t$e -%les o( =roce!%re a!o&te! b' t$e m%nici&al boar! o( Naga Cit' ,$ic$ recites: ;g< 2$e c$airman cannot vote e4ce&t in case o( a tie. Ho,ever a member o( t$e Boar! acting as c$airman ma' vote as a member an! as c$airman to brea+ a tie. 2$e &etitioner insists $o,ever t$at t$e above &rovision ,as amen!e! b' t$e Gt$ m%nici&al boar! $ea!e! b' $er to rea! as (ollo,s: ;g< 2$e C$airman as member o( t$e Boar! can vote an! as a =resi!ing O((icer ma' vote again in case o( a tie. *n t$e same manner a member o( t$e Boar! acting as c$airman ma' vote as a member an! as C$airman to brea+ t$e tie. )%c$ insistence is a s$eer e4ercise in (%tilit' beca%se ;1< t$e amen!e! r%le &res%&&oses t$at t$e c$airman is a "member o( t$e Boar!" S an ass%m&tion t$at is ,it$o%t legal basisA ;/< t$e sai! amen!ator' r%le ,as &asse! on Marc$ C 18G8 almost t,o mont$s a(ter t$e (iling on 7an%ar' 1C 18G8 b' t$e &rivate res&on!ents o( t$eir &etition in civil case GC50 t$at is &en!ente liteA an! ;1< alt$o%g$ on t$e !ate t$e sai! amen!ment ,as &asse! t$at restraining or!er !ate! Febr%ar' /5 18G8 o( t$e Co%rt o( #&&eals ,as in (orce t$ere ,as no .%or%m in t$e boar! as t$e (o%r res&on!ents co%ncilors $a! ,al+e! o%t o( t$e session $all leaving onl' t$e t$ree Liberal =art' co%ncilors an! t$e &etitioner. 2$e &ro&ose! amen!ment ,as t$ere(ore a com&lete n%llit'. =etitioner>s t$eor' t$at since t$e ma'or o( Naga Cit' ,$o ,as a member o( t$e m%nici&al boar! %n!er -e&. #ct 15C ,as re&lace! b' t$e viceDma'or as &resi!ing o((icer t$ereo( t$e viceDma'or m%st &er(orce be !eeme! a member o( t$e m%nici&al boar!. =ressing $er bi! s$e asserts t$at -e&%blic #ct //C8 e((ecte! a mere c$ange in t$e o((icer ,$o ,ill &resi!e t$e meetings o( t$e boar! an! since t$e viceDma'or re&lace! t$e ma'or as "&resi!ing o((icer" t$ereo( t$e viceDma'or ac.%ire! all t$e rig$ts an! &rerogatives o( t$e &resi!ing o((icer one o( ,$ic$ is members$i& in t$e boar!. 2$is contention (in!s no s%&&ort eit$er in la, or logic. For section 1 o( -e&. #ct //C8 sim&l' installs t$e viceDma'or as t$e &resi!ing o((icer o( t$e boar! in all c$artere! cities. *t !oes not install t$e viceDma'or as a member t$ereo(. 2$is is es&eciall' tr%e in t$e case o( Naga ,$ere t$e &osition o( viceDma'or ;,$et$er a&&ointive or elective< ,as originall' not even &rovi!e! (or in its c$arter S t$e o((icial ne4tD inDran+ to t$e ma'or being t$e cit' treas%rer. /. 6ON s$e can vote t,ice: to create a !ea!loc+ an! t$en to brea+ it. NO. 2$e &etitioner no, arg%es t$at as viceDma'or s$e merel' ste&&e! into t$e s$oes o( t$e ma'or as &resi!ing o((icer o( t$e boar! an! since t$e ma'or ,as consi!ere! a member t$ereo( s$e too became a member entitle! to t$e same rig$ts &o,ers an! &rerogatives o( voting as t$e ma'or. 2$ere is no gainsa'ing t$e (act t$at &rior to t$e a&&roval o( -e&. #ct //C8 t$e ma'or o( a m%nici&alit' ,as a member o( t$e m%nici&al co%ncil /C besi!es being t$e &resi!ing o((icer t$ereo( b%t $is rig$t to vote co%l! be e4ercise! onl' in "case o( a tie." /G Certainl' t$e viceDma'or ,$o merel' ste&&e! into t$e s$oes o( t$e ma'or co%l! $ave no greater &o,er t$an t$at &ossesse! b' t$e ma'or ,$o co%l! not create a tie vote an! t$en brea+ it. 1. 6ON t$e 9%!ge $as 9%ris!iction to iss%e t$e ,rit o( &ro$ibitor' in9%nction against =ereB. :3). 2$e &etitionerHs (inal contention is t$at as a legislative o((icial &er(orming legislative (%nctions s$e is not s%b9ect to an' &ro$ibitor' &rocess b' t$e co%rts. )$e invo+es Kera et al. vs. #velino et al. ;77 =$il. 18/< ,$ere ,e $el!: =etitioners &ra' (or a ,rit o( &ro$ibition. @n!er t$e la, &ro$ibition re(ers onl' to &rocee!ings o( an' trib%nal cor&oration boar! or &erson e4ercising (%nctions 9%!icial or ministerial. #s res&on!ents !o not e4ercise s%c$ +in! o( (%nctions t$eirs being legislative it is clear t$at t$e !is&%te (alls be'on! t$e sco&e o( s%c$ s&ecial reme!'.
111
Mabelle O. Nebres | Local Governments Case Digests *nvocation o( t$is r%ling is com&letel' ina&&osite. 2$e
!octrine t$erein lai! !o,n is base! on t$e &rinci&le o( se&aration o( &o,ers an! c$ee+s an! balances an! is not a&&licable to local governments. Moreover e4ec%tives at t$e local or m%nici&al level are veste! ,it$ bot$ legislative an! sometimes 9%!icial (%nctions in a!!ition to t$eir &%rel' e4ec%tive !%ties. B' e4&licit stat%tor' comman! co%rts are given a%t$orit' to !etermine t$e vali!it' o( m%nici&al &rocee!ings. *t is not !is&%te! t$at t$e &resent &rocee!ing (or &ro$ibition $as (or its ob9ective to &revent t$e &etitioner (rom "&artici&ating in t$e election o( )ecretar' o( t$e Boar! c$airmans$i& o( !i((erent committees an! in voting in ot$er legislative matters &ro&osals an! &rocee!ings ot$er t$an to brea+ a tie." *t is o%r vie, t$at t$e &etitioner in insisting to e4ercise t$e rig$t to vote t,ice in t$e m%nici&al boar! acte! ,it$o%t 9%ris!iction an! &o,er to !o so an! ma' be vali!l' &revente! an! restraine! b' a ,rit o( &ro$ibition. *n re&l' to t$e &etitionerHs assertion t$at t$e acts so%g$t to be restraine! are mere "&robable in!ivi!%al act%ations" be'on! t$e reac$ o( a &ro$ibitor' ,rit s%((ice it to state t$at &ro$ibition is essentiall' a "&reventive reme!'" an! is "not inten!e! to &rovi!e (or a reme!' (or acts alrea!' accom&lis$e!." 6it$al &etitionerHs t$reat o( voting t,ice in t$e m%nici&al boar! ,as not an em&t' or meaningless gest%re (or t$e recor! s$o,s t$at on Marc$ C 18G8 soon a(ter t$e ,rit com&laine! o( ,as li(te! b' t$e Co%rt o( #&&eals t$ro%g$ t$e latterHs restraining or!er o( Febr%ar' /5 18G8 t$e &etitioner &rocee!e! to act b' voting t,ice (or t$e a&&roval o( an allege! amen!ment to t$e r%les o( &roce!%re o( t$e m%nici&al boar!. 9omeo"ners Association o! the Philippines v. Municipal Boar o! Manila Facts: 2$e Cit' o( Manila &asse! M%nici&al Or!inance No. 0801 ,$ic$ reg%lates rentals o( lots an! b%il!ings (or resi!ential &%r&oses. 2$e Homeo,nersH #ssociation o( t$e =$ili&&ines *nc. an! its =resi!ent so%g$t to n%lli(' t$e or!inance. CF*: or!inance is %ltra vires %nconstit%tional illegal an! voi! ab initio. LC: str%c+ !o,n t$e .%estione! or!inance %&on t$e gro%n! t$at t$e &o,er to "!eclare a state o( emergenc' ... e4cl%sivel' &ertains to Congress"A t$at "t$ere is no longer an' state o( emergenc'" ,$ic$ ma' 9%sti(' t$e reg%lation o( $o%se rentalsA t$at sai! or!inance constit%tes an %nreasonable an! %n9%sti(ie! limitation on t$e %se o( &rivate &ro&erties an! arbitraril' encroac$es on t$e constit%tional rig$ts o( &ro&ert' o,ners"A t$at t$e &o,er o( t$e Cit' o( Manila to "reg%late t$e b%siness o( ... letting or s%bletting o( lan!s an! b%il!ings" !oes not incl%!e t$e a%t$orit' to &ro$ibit ,$at is (orbi!!en in sai! or!inanceA an! t$at t$e same cannot be !eeme! sanctione! b' t$e general ,el(are cla%se in t$e Cit' C$arter. *ss%e: 6ON t$e Or!inance is vali!. NO. 2$e a%t$orit' o( m%nici&al cor&orations to reg%late is essentiall' &olice &o,er. *nasm%c$ as t$e same generall' entails a c%rtailment o( t$e libert' t$e rig$ts an!?or t$e &ro&ert' o( &ersons ,$ic$ are &rotecte! an! even g%arantee! b' t$e Constit%tion t$e e4ercise o( &olice &o,er is necessaril' s%b9ect to a .%ali(ication limitation or restriction !eman!e! b' t$e regar! t$e res&ect an! t$e obe!ience !%e to t$e &rescri&tions o( t$e (%n!amental la, &artic%larl' t$ose (orming &art o( t$e Constit%tion o( Libert' ot$er,ise +no,n as t$e Bill o( -ig$ts S t$e &olice &o,er meas%re m%st be "reasonable". *n ot$er ,or!s in!ivi!%al rig$ts ma' be a!versel' a((ecte! b' t$e e4ercise o( &olice &o,er to t$e e4tent onl' S an! onl' to t$e e4tent S t$at ma' (airl' be re.%ire! b' t$e legitimate !eman!s o( &%blic interest or &%blic ,el(are. *( s%c$ !eman!s are bro%g$t abo%t b' a state o( emergenc' t$e inter(erence %&on in!ivi!%al rig$ts res%lting (rom t$e reg%lations a!o&te! to meet t$e sit%ation m%st be b' an! large coDe4tensive coDe.%al or coD termino%s ,it$ t$e e4istence t$ereo(. #n! since an emergenc' is b' nat%re tem&orar' in c$aracter so m%st t$e reg%lations &rom%lgate! t$ere(or be. *n t$e lang%age o( 7%stice Holmes "circ%mstances ma' so c$ange in time or !i((er in s&ace as to clot$e ,it$ s%c$ an interest ,$at at ot$er times or in ot$er &laces ,o%l! be a matter o( &%rel' &rivate concern." #s a conse.%ence a la, or or!inance a((ecting t$e rig$ts o( in!ivi!%als as a means to ti!e over a critical con!ition to be vali! an! legal m%st be (or a
110

"!e(inite" &erio! o( time t$e lengt$ o( ,$ic$ m%st be "reasonable" in relation to t$e nat%re an! !%ration o( t$e crisis it see+s to overcome or s%rmo%nt. 2$e &ractical reason (or t$e re.%irement t$at a stat%te &asse! to meet a given emergenc' s$o%l! limit t$e &erio! o( its e((ectivit' is t$at ot$er,ise a ne, an! !i((erent la, ,o%l! be necessar' to re&eal it an! sai! &erio! ,o%l! accor!ingl' be "%nlimite! in!e(inite negative an! %ncertain" so t$at "t$at ,$ic$ ,as inten!e! to meet a tem&orar' emergenc' ma' become a &ermanent la," beca%se "Congress mig$t not enact t$e re&eal an! even i( it ,o%l! t$e re&eal mig$t not meet ,it$ t$e a&&roval o( t$e =resi!ent an! t$e Congress mig$t not be able to overri!e t$e veto". *n line ,it$ t$e basic &$iloso&$' %n!erl'ing t$e a%t$orit' to a((ect in!ivi!%al rig$ts t$is Co%rt (elt t$at Common,ealt$ #ct No. G71 ot$er,ise +no,n as t$e 3mergenc' =o,ers #ct ,as meant to be an! "became ino&erative ,$en Congress met in reg%lar session on Ma' /C 180G " an! t$at 34ec%tive Or!ers Nos. G/ 18/ //C an! //G S &rom%lgate! s%bse.%entl' t$ereto S ",ere iss%e! ,it$o%t a%t$orit' o( la," beca%se ot$er,ise sai! emergenc' reg%lations ,o%l! &%r&ort to be in (orce (or an in!e(inite an! %nlimite! &erio! o( time an! $ence ,o%l! be %nconstit%tional. 2$e same consi!erations im&elle! t$e Co%rt to invali!ate 34ec%tive Or!er Nos. C0C an! C0G iss%e! on November 15 18C/. *n!ee! ot$er,ise "t$e res%lt ,o%l! be obvio%s %nconstit%tionalit'" b' ma+ing &ermanent a la, inten!e! to a((or! a relie( (or a tem&orar' emergenc' t$e lengt$ o( ,$ic$ s$o%l! be "(i4e! in t$e la, itsel( an! not !e&en!ent %&on t$e arbitrar' or elastic ,ill o( eit$er Congress or t$e =resi!ent". 2$e &o,ers o( m%nici&al cor&orations !elegate! t$ereto b' t$e National Government cannot esca&e t$e in$erent limitations to ,$ic$ t$e latter S as t$e so%rce o( sai! &o,ers S is s%b9ect. 2$en again since o%r la, on m%nici&al cor&orations is in &rinci&le &atterne! a(ter t$at o( t$e @nite! )tates t$e r%le t$erein to t$e e((ect t$at "in a &ro&er case emergenc' legislation limite! in time ma' be enacte! %n!er t$e &olice &o,er" o( a m%nici&al cor&oration s$o%l! be consi!ere! a &art o( o%r legal s'stem. #&&ellant assails t$e vali!it' o( t$e &rocee!ings in t$e lo,er co%rt %&on t$e ro%n! t$at alt$o%g$ &etitioners $erein $a! assaile! M%nici&al Or!inance No. 0801 not merel' as %ltra vires b%t also as %nconstit%tional t$e )olicitor General $a! been neit$er $ear! nor noti(ie! in connection t$ere,it$ in violation o( )ection 0 o( -%le G0 o( t$e -%les o( Co%rt. *t s$o%l! be note! $o,ever t$at a&&ellant !i! not raise t$is .%estion or invo+e sai! )ection 0 eit$er in $is ans,er or in a motion to !ismiss in t$e lo,er co%rt. @&on t$e ot$er $an! t$e Cit' Fiscal o( Manila ,as noti(ie! t$erein. *n (act $e (ile! a memoran!%m a&art (rom t$e memoran!%m s%bmitte! b' co%nsel (or a&&ellant $erein. Neit$er !i! $is motion (or reconsi!eration o( t$e a&&eale! !ecision to%c$ %&on sai! .%estion ,$ic$ ,as raise! (or t$e (irst time in a "s%&&lement" to sai! motion (or reconsi!eration. #t an' rate t$e !etermination o( t$e .%estion ,$et$er or not t$e )olicitor General s$o%l! be re.%ire! to a&&ear "in an' action involving t$e vali!it' o( an' treat' la, or!inance or e4ec%tive or!er r%les or reg%lation" is a matter le(t to t$e "!iscretion" o( t$e Co%rt &%rs%ant to )ection /1 o( -%le 1 o( t$e -%les o( Co%rt. *nasm%c$ as sai! re.%irement is not man!ator' b%t !iscretionar' nonDcom&liance t$ere,it$ an! ,it$ )ection 0 o( -%le G0 S t$e inter&retation o( ,$ic$ s$o%l! be $armoniBe! ,it$ sai! )ection /1 o( -%le 1 S a((ecte! neit$er t$e 9%ris!iction o( t$e trial co%rt nor t$e vali!it' o( t$e &rocee!ings t$erein in connection ,it$ t$e &resent case. 2$%s in )an B%enavent%ra vs. M%nici&alit' o( )an 7ose ,e $el!: t$at t$e re.%irement regar!ing noti(ication to t$e =rovincial Fiscal o( t$e &en!enc' o( an action
11C

involving t$e vali!it' o( a m%nici&al or!inance as &rovi!e! in )ec. C -%le GG o( t$e -%les o( Co%rt ;no, )ee. 0 -%le G0 o( t$e -evise! -%les o( Co%rt< is not 9%ris!ictionalA an! (ail%re on t$e &art o( &etitioner to noti(' t$e =rovincial Fiscal ,ill not be a s%((icient gro%n! to t$ro, t$e case o%t o( co%rt. 6e believe t$e &%r&ose o( t$e aboveD.%ote! r%le is sim&l' to give t$e =rovincial Fiscal ,$o is t$e legal o((icer o( t$e local governments a c$ance to &artici&ate in t$e !eliberation to !etermine t$e vali!it' o( a .%estione! m%nici&al or!inance be(ore t$e com&etent co%rt. *( it a&&ears $o,ever t$at t$e or!inance in .%estion is &atentl' illegal as in t$e &resent case an! t$e matter $a! alrea!' been &asse! %&on b' a com&etent co%rt t$e re.%irements o( )ec. C o( -%le GG o( t$e -%les o( Co%rt ;no, )ee. 0 o( -%le G0 o( t$e -evise! -%les o( Co%rt< ma' be !is&ense! ,it$.
11G

#ctions co%&le! ,it$ &rovisional reme!ies s%c$ as &reliminar' in9%nction attac$ment !eliver' o( &ersonal &ro&ert' an! s%&&ort &en!ente liteA an! U0V 6$ere t$e action ma' ot$er,ise be barre! b' t$e )tat%te o( Limitations )ection / o( t$e la, !e(ines t$e sco&e o( a%t$orit' o( t$e L%&on t$%s: )%b9ect matters (or amicable settlement.S2$e L%&on o( eac$ baranga' s$all $ave a%t$orit' to bring toget$er t$e &arties act%all' resi!ing in t$e same cit' or m%nici&alit' (or amicable settlement o( all !is&%tes e4ce&t: U1V 6$ere one &art' is t$e government or an' s%b!ivision or instr%mentalit' t$ereo(A U/V 6$ere one &art' is a &%blic o((icer or em&lo'ee an! t$e !is&%te relates to t$e &er(ormance o( $is o((icial (%nctionsA U1V O((enses &%nis$able b' im&risonment e4cee!ing 15 !a's or a (ine e4cee!ing =/55.55A U0V O((enses ,$ere t$ere is no &rivate o((en!e! &art'A UCV )%c$ ot$er classes o( !is&%tes ,$ic$ t$e =rime Minister ma' in t$e interest o( 9%stice !etermine %&on recommen!ation o( t$e Minister o( 7%stice an! t$e Minister o( Local Government. 2$%s e4ce&t in t$e instances en%merate! in sections / an! G o( t$e la, t$e L%&on $as t$e a%t$orit' to settle amicabl' all t'&es o( !is&%tes involving &arties ,$o act%all' resi!e in t$e same cit' or m%nici&alit'. 2$e la, as ,ritten ma+es no !istinction ,$atsoever ,it$ res&ect to t$e classes o( civil !is&%tes t$at s$o%l! be com&romise! at t$e baranga' level in contra!istinction to t$e limitation im&ose! %&on t$e L%&on b' &aragra&$ ;1< section / t$ereo( as regar!s its a%t$orit' over criminal cases. *n (act in !e(ining t$e L%&onHs a%t$orit' )ection / o( sai! la, em&lo'e! t$e %niversal an! com&re$ensive term "all" to ,$ic$ %sage 6e s$o%l! neit$er a!! nor s%btract in consonance ,it$ t$e r%!imentar' &rece&t in stat%tor' constr%ction t$at ",$ere t$e la, !oes not !isting%is$ 6e s$o%l! not !isting%is$. B' com&elling t$e !is&%tants to settle t$eir !i((erences t$ro%g$ t$e intervention o( t$e baranga' lea!er an! ot$er res&ecte! members o( t$e baranga' t$e animosit' generate! b' &rotracte! co%rt litigations bet,een members o( t$e same &olitical %nit a !isr%&tive (actor to,ar! %nit' an! coo&eration is avoi!e!. *t m%st be borne in min! t$at t$e conciliation &rocess at t$e baranga' level is li+e,ise !esigne! to !isco%rage in!iscriminate (iling o( cases in co%rt
Morata v. Go Facts: Kictor an! Flora Go (ile! a com&laint ,it$ t$e CF* against 7%li%s an! Ma. L%isa Morata (or recover' o( a s%m o( mone' &l%s !amages. 2$e &arties are all resi!ents o( Ceb% Cit'. 2$e Moratas (ile! a motion to !ismiss citing as gro%n!s t$e (ail%re o( t$e com&laint to allege &rior availment b' t$e Gos o( t$e baranga' conciliation &rocess re.%ire! b' =.D. 1C58 as ,ell as t$e absence o( a certi(ication b' t$e L%&on or =ang+at )ecretar' t$at no conciliation or settlement $a! been reac$e! b' t$e &arties. 2$e motion ,as o&&ose!. M2D !enie!. M- !enie!. *ss%e: 6ON t$e Matar%ngang =ambaranga' la, a&&l' to cases $ear! b' t$e -egional 2rial Co%rts. :3). )3C2*ON G. No com&laint &etition action (or &rocee!ing involving an' matter ,it$in t$e a%t$orit' o( t$e L%&on as &rovi!e! in )ection / $ereo( s$all be (ile! or instit%te! in co%rt or an' ot$er government o((ice (or a!9%!ication %nless t$ere $as been a con(rontation o( t$e &arties be(ore t$e L%&on C$airman or t$e =ang+at an! no conciliation or settlement $as been reac$e! as certi(ie! b' t$e L%&on )ecretar' or t$e =ang+at )ecretar' atteste! b' t$e L%&on or =ang+at C$airman or %nless t$e settlement $as been re&%!iate!. Ho,ever t$e &arties ma' go !irectl' to co%rt in t$e (ollo,ing cases: U1V 6$ere t$e acc%se! is %n!er !etentionA U/V 6$ere a &erson $as ot$er,ise been !e&rive! o( &ersonal libert' calling (or $abeas cor&%s &rocee!ingsA U1V
117

in or!er to !econgest its clogge! !oc+ets an! in t$e &rocess en$ance t$e .%alit' o( 9%stice !is&ense! b' it. 2$%s to sa' t$at t$e a%t$orit' o( t$e L%&on is limite! to cases e4cl%sivel' cogniBable b' t$e in(erior co%rts is to lose sig$t o( t$is ob9ective. 6orse it ,o%l! ma+e t$e la, a sel(D !e(eating one. For ,$at ,o%l! sto& a &art' sa' in an action (or a s%m o( mone' or !amages as in t$e instant case (rom bloating %& $is claim in or!er to &lace $is case be'on! t$e 9%ris!iction o( t$e in(erior co%rt an! t$ereb' avoi! t$e man!ator' re.%irement o( =.D. 1C58T #n! ,$' in!ee! s$o%l! t$e la, see+ to ease t$e congestion o( !oc+ets onl' in in(erior co%rts an! not in t$e regional trial co%rts ,$ere t$e logD9am o( cases is m%c$ more serio%sT *n!ee! t$e la,ma+ers co%l! not $ave inten!e! s%c$ $al(Dmeas%re an! sel(D!e(eating legislation. 2$ere can be no .%estion t$at ,$en t$e la, con(erre! %&on t$e L%&on "t$e a%t$orit' to bring toget$er t$e &arties act%all' resi!ing in t$e same cit' or m%nici&alit' (or amicable settlement o( all !is&%tes ... " its obvio%s inten!ment ,as to grant to t$e L%&on as broa! an! com&re$ensive an a%t$orit' as &ossible as ,o%l! bring abo%t t$e o&tim%m realiBation o( t$e a(oresai! ob9ectives. 2$ese ob9ectives ,o%l! onl' be $al(Dmet an! easil' t$,arte! i( t$e L%&onHs a%t$orit' is e4ercise! onl' in cases (alling ,it$in t$e e4cl%sive 9%ris!iction o( in(erior co%rts. Moreover i( it is t$e intention o( t$e la, to restrict its coverage onl' to cases cogniBable b' t$e in(erior co%rts t$en it ,o%l! not $ave &rovi!e! in )ection 1 t$ereo( t$e (ollo,ing r%le on Ken%e to ,it: Ho,ever all !is&%tes ,$ic$ involve real &ro&ert' or an' interest t$erein s$all be bro%g$t in t$e Baranga' ,$ere t$e real &ro&ert' or an! &art t$ereo( is sit%ate!. 2$e a%t$orit' o( t$e L%&on is clearl' establis$e! in )ection / o( t$e la,A ,$ereas )ections 11 1/ an! 10 relie! %&on b' res&on!ent 9%!ge !eal ,it$ t$e n%lli(ication or e4ec%tion o( t$e settlement or arbitration a,ar!s obtaine! at t$e baranga' level. 2$ese sections con(erre! %&on t$e cit' an! m%nici&al co%rts t$e 9%ris!iction to &ass %&on an! resolve &etitions or actions (or n%lli(ication or en(orcement o( settlement?arbitration a,ar!s iss%e! b' t$e L%&on regar!less o( t$e amo%nt involve! or t$e nat%re o( t$e original !is&%te. B%t t$ere is not$ing in t$e conte4t o( sai! sections to 9%sti(' t$e t$esis t$at t$e man!ate! conciliation &rocess in ot$er t'&es o( cases a&&lies e4cl%sivel' to sai! in(erior co%rts. #n' !o%bt on t$e iss%e be(ore @s s$o%l! be !is&elle! b' Circ%lar No. // iss%e! b' C$ie( 7%stice 3nri.%e M. Fernan!o: E3((ective %&on 'o%r recei&t o( t$e certi(ication b' t$e Minister o( Local Government an! Comm%nit' Develo&ment t$at all t$e baranga's ,it$in 'o%r res&ective 9%ris!ictions $ave organiBe! t$eir L%&ons &rovi!e! (or in =resi!ential Decree No. 1C58 ot$er,ise +no,n as t$e 5atarungang #ambarangay 2aw in im&lementation o( t$e baranga' s'stem o( settlement o( !is&%tes 'o% are $ereb' !irecte! to !esist (rom receiving com&laints &etitions actions or &rocee!ings in cases (alling ,it$in t$e a%t$orit' o( sai! L%&ons. *t is signi(icant t$at t$e aboveD.%ote! circ%lar embo!'ing t$e !irective "to !esist (rom receiving com&laints &etitions actions an! &rocee!ings in cases (alling ,it$in t$e a%t$orit' o( sai! L%&ons " $as been a!!resse! not onl' to 9%!ges o( cit' an! m%nici&al co%rts b%t also to all t$e 9%!ges o( t$e co%rts o( (irst instance circ%it criminal co%rts 9%venile an! !omestic co%rts an! co%rts o( agrarian relations no, +no,n as regional trial co%rts %n!er B.=. No. 1/8. 2$e sai! circ%lar ,as note! b' &resi!ent Fer!inan! 3. Marcos in a Letter o( *m&lementation !ate! November 1/ 1878 t$e (irst &aragra&$ o( ,$ic$ rea!s as (ollo,s: ",it$ t$e vie, to easing %& t$e logD9am o( cases an! solving t$e bac+logs in t$e case o( !oc+ets o( all government o((ices involve! in t$e investigation trial an! a!9%!ication o( cases it is $ereb' or!ere! t$at imme!iate im&lementation be ma!e b' all government o((icials an! o((ices concerne! o( t$e s'stem o( amicabl' settling !is&%tes at t$e baranga' level as &rovi!e! (or in t$e Matar%ngang =ambaranga' La, U=resi!ential Decree No. 1C58V." 2$e conciliation &rocess at t$e baranga' level &rescribe! b' =.D. 1C58 as a &reDcon!ition (or (iling a com&laint in co%rt is com&%lsor' not onl' (or cases (alling %n!er t$e e4cl%sive com&etence o( t$e metro&olitan an! m%nici&al trial co%rts b%t (or actions cogniBable b' t$e regional trial co%rts as ,ell. A# v. Contreras
118

Facts: @' s%blease! (rom #ta'!e t$e ot$er $al( o( t$e secon! (loor o( a b%il!ing locate! at corner -e&oso an! Oliman )treets Ma+ati. )$e o&erate! an! maintaine! t$erein a bea%t' &arlor. 2$e s%blease contract e4&ire!. Ho,ever t$e @' ,as not able to remove all $er movable &ro&erties. #n arg%ment arose bet,een t$e @' an! #ta'!e ,$en t$e (ormer so%g$t to ,it$!ra, (rom t$e s%blease! &remises $er remaining movable &ro&erties s%c$ as cabinets s$elves (rames a mirror a s$am&oo bo,l an! an aircon!itioning casing. 2$e arg%ment !egenerate! into a sc%((le bet,een t$e &etitioner on t$e one $an! an! #ta'!e an! several o( #ta'!eHs em&lo'ees incl%!ing &rivate res&on!ent 7avier on t$e ot$er. 2$e &rivate res&on!ent $a! t$emselves me!icall' e4amine! (or t$e allege! in9%ries in(licte! on t$em b' @'. 2$e' t$en (ile! a com&laint ,it$ t$e baranga' ca&tain o( KalenB%ela Ma+ati. 2$e con(rontation o( t$e &arties ,as sc$e!%le! b' t$e baranga' ca&tain b%t onl' @' a&&eare!. 2$e con(rontation ,as reset. 2$e O((ice o( t$e =rovincial =rosec%tor o( -iBal (ile! t,o in(ormations (or slig$t &$'sical in9%ries against @'. 7%!ge Contreras or!ere! t$e &etitioner to s%bmit $er co%nterDa((i!avit an! t$ose o( $er ,itnesses. @' s%bmitte! t$e re.%ire! co%nterDa((i!avits ,$ere s$e s&eci(icall' allege! t$e &remat%rit' o( t$e (iling o( t$e criminal cases (or (ail%re to %n!ergo conciliation &rocee!ings as s$e an! t$e &rivate res&on!ents are resi!ents o( Manila. )$e also attac$e! to it a certi(ication b' t$e baranga' ca&tain o( KalenB%ela Ma+ati t$at t$ere ,as an ongoing conciliation bet,een t$e &arties. @' t$en (ile! an M2D (or nonD com&liance ,it$ t$e re.%irement o( =.D. No. 1C58 on &rior re(erral to t$e L%&ong 2aga&ama'a&a an! &%rs%ant to )ection 18 o( t$e 1881 -evise! -%le on )%mmar' =roce!%re. M2D !enie! M!enie!. *ss%e:6ON it is man!ator' (or t$e &arties $erein to s%bmit to t$e me!iation o( t$e +atar%ngang &ambaranga' be(ore a case in co%rt. :3). 2$e la, on t$e +atar%ngang &ambaranga' ,as originall' governe! b' =.D. No. 1C58 no, re&eale! b' LGC. 2$ree ne, (eat%res: ;1< *t increase! t$e a%t$orit' o( t$e l%&on in criminal o((enses (rom t$ose &%nis$able b' im&risonment not e4cee!ing t$irt' !a's or a (ine not e4cee!ing =/55.55 in =.D. No. 1C58 to t$ose o((enses &%nis$able b' im&risonment not e4cee!ing one 'ear or a (ine not e4cee!ing =C 555.55. ;/< #s to ven%e it &rovi!es t$at !is&%tes arising at t$e ,or+&lace ,$ere t$e conten!ing &arties are em&lo'e! or at t$e instit%tion ,$ere s%c$ &arties are enrolle! (or st%!' s$all be bro%g$t in t$e baranga' ,$ere s%c$ ,or+&lace or instit%tion is locate!. ;1< *t &rovi!es (or t$e s%s&ension o( t$e &rescri&tive &erio!s o( o((enses !%ring t$e &en!enc' o( t$e me!iation conciliation or arbitration &rocess. =aragra&$ ;c< o( )ection 015 o( t$e la, $o,ever s%((ers (rom some ambig%it' ,$en it &rovi!es t$at t$e &rescri&tive &erio!s "s$all res%me %&on recei&t b' t$e com&lainant o( t$e com&laint or t$e certi(icate o( re&%!iation or o( t$e certi(ication to (ile action iss%e! b' t$e l%&on or &ang+at secretar'." 6$at is re(erre! to as recei&t b' t$e com&lainant o( t$e com&laint is %nclearA obvio%sl' it co%l! $ave been a !ra(ting oversig$t. #ccor!ingl' in t$e above .%ote! )ection 11 o( t$e -%les an! -eg%lations iss%e! b' t$e )ecretar' o( 7%stice t$e &$rase "t$e com&laint or" is not (o%n! s%c$ t$at t$e res%m&tion o( t$e r%nning o( t$e &rescri&tive &erio! s$all &ro&erl' be (rom recei&t b' t$e com&lainant o( t$e certi(icate o( re&%!iation or t$e certi(ication to (ile action iss%e! b' t$e l%&on or t$e &ang+at secretar'. )%c$ s%s&ension $o,ever s$all not e4cee! si4t' !a's. 2$e (irst (eat%re $as necessaril' broa!ene! t$e 9%ris!iction o( t$e l%&on an! i( t$e me!iation an! conciliation &rocess at t$at level ,o%l! be e((ectivel' &%rs%e! (e, cases ,o%l! reac$ t$e reg%lar co%rts 9%stice ,o%l! be ac$ieve! at less e4&ense to t$e litigants cor!ial relations$i&s among &rotagonists in a small comm%nit' ,o%l! be restore! an! &eace an! or!er t$erein en$ance!. 2$e secon! (eat%re ,$ic$ is covere! b' &aragra&$ ;!< )ection 058 o( t$e LGC also broa!ens t$e a%t$orit' o( t$e l%&on in t$e sense t$at a&&ro&riate civil an! criminal cases arising (rom inci!ents occ%rring in ,or+&laces or instit%tions o( learning s$all be bro%g$t in t$e baranga' ,$ere s%c$ ,or+&lace or instit%tion is locate!. 2$at baranga' ma' not be t$e a&&ro&riate ven%e in eit$er &aragra&$ ;a< or &aragra&$ ;b< o( t$e sai! section. 2$is r%le &rovi!es convenience to t$e &arties. =roce!%ral r%les incl%!ing t$ose relating to ven%e are !esigne! to ins%re a (air an! convenient $earing to t$e &arties ,it$ com&lete 9%stice bet,een t$em as a res%lt. 3lse,ise state! convenience is t$e raison !Hetre o( t$e r%le on ven%e.
118

2$e t$ir! (eat%re is aime! at ma4imiBing t$e e((ectiveness o( t$e me!iation conciliation or arbitration &rocess. *t !isco%rages an' intentional !ela' o( t$e re(erral to a !ate close to t$e e4&iration o( t$e &rescri&tive &erio! an! t$en invo+ing t$e &ro4imit' o( s%c$ e4&iration as t$e reason (or imme!iate reco%rse to t$e co%rts. *t also a((or!s t$e &arties s%((icient time to cool o(( an! (ace eac$ ot$er ,it$ less emotionalism an! more ob9ectivit' ,$ic$ are essential ingre!ients in t$e resol%tion o( t$eir !is&%te. 2$e si4t'D!a' s%s&ension o( t$e &rescri&tive &erio! co%l! s&ell t$e !i((erence bet,een &eace an! a (%llDblo,n ,earisome an! e4&ensive litigation bet,een t$e &arties. 6$ile =.D. No. 1C58 $as been re&eale! b' t$e LGC o( 1881 t$e 9%ris&r%!ence b%ilt t$ereon regar!ing &rior re(erral to t$e l%&on as a &reDcon!ition to t$e (iling o( an action in co%rt remains a&&licable beca%se its &rovisions on &rior re(erral ,ere s%bstantiall' re&ro!%ce! in t$e Co!e. =eregrina vs. =anis: 2$%s Morata vs. Go 1/C )C-# 000 ;1881< an! K!a. !e Borromeo vs. =ogo' 1/G )C-# /17 ;1881< $ave $el! t$at =.D. No. 1C58 ma+es t$e conciliation &rocess at t$e Baranga' level a con!ition &rece!ent (or t$e (iling o( a com&laint in Co%rt. NonDcom&liance ,it$ t$at con!ition &rece!ent co%l! a((ect t$e s%((icienc' o( t$e &lainti((Hs ca%se o( action an! ma+e $is com&laint v%lnerable to !ismissal on t$e gro%n! o( lac+ o( ca%se o( action or &remat%rit'. 2$e con!ition is analogo%s to e4$a%stion o( a!ministrative reme!ies or t$e lac+ o( earnest e((orts to com&romise s%its bet,een (amil' members lac+ing ,$ic$ t$e case can be !ismisse!. 2$e &arties $erein (all s.%arel' ,it$in t$e ambit o( =.D. No. 1C58. 2$e' are act%al resi!ents in t$e same baranga' an! t$eir !is&%tes !oes not (all %n!er an' o( t$e e4ce&te! cases." )%c$ nonDcom&liance is not $o,ever 9%ris!ictional. 2$is Co%rt sai! so in Garces vs. Co%rt o( #&&eals: &rior reco%rse to t$e conciliation &roce!%re re.%ire! %n!er =.D. 1C58 is not a 9%ris!ictional re.%irement nonDcom&liance ,it$ ,$ic$ ,o%l! !e&rive a co%rt o( its 9%ris!iction eit$er over t$e s%b9ect matter or over t$e &erson o( t$e !e(en!ant. 6$ere $o,ever t$e (act o( nonDcom&liance ,it$ an! nonD observance o( s%c$ &roce!%re $as been seasonabl' raise! as an iss%e be(ore t$e co%rt (irst ta+ing cogniBance o( t$e com&laint !ismissal o( t$e action is &ro&er. 2$e &recise tec$nical e((ect o( (ail%re to com&l' ,it$ t$e re.%irement o( =.D. 1C58 ,$ere a&&licable is m%c$ t$e same e((ect &ro!%ce! b' nonDe4$a%stion o( a!ministrative reme!iesA t$e com&laint becomes a((licte! ,it$ t$e vice o( &reDmat%rit'A t$e controvers' t$ere allege! is not ri&e (or 9%!icial !etermination. 2$e com&laint becomes v%lnerable to a motion to !ismiss. 2$ere ,ere o( co%rse cases ,$ere t$is Co%rt r%le! t$at t$e (ail%re o( t$e !e(en!ant to seasonabl' invo+e nonDre(erral to t$e a&&ro&riate l%&on o&erate! as a ,aiver t$ereo(. F%rt$ermore ,$en s%c$ !e(ect ,as initiall' &resent ,$en t$e case ,as (irst (ile! in t$e trial co%rt t$e s%bse.%ent iss%ance o( t$e certi(ication to (ile action b' t$e baranga' ,$ic$ constit%te! s%bstantial com&liance ,it$ t$e sai! re.%irement c%re! t$e !e(ect. -evise! -%le on )%mmar' =roce!%re: )ec. 18 Cases re.%iring re(erral to t$e L%&on (or conciliation %n!er t$e &rovisions o( =resi!ential Decree No. 1C58 ,$ere t$ere is no s$o,ing o( com&liance ,it$ s%c$ re.%irement s$all be !ismisse! ,it$o%t &re9%!ice an! ma' be revive! onl' a(ter s%c$ re.%irement s$all $ave been com&lie! ,it$. 2$is &rovision s$all not a&&l' to criminal cases ,$ere t$e acc%se! ,as arreste! ,it$o%t a ,arrant. *n t$e &rocee!ing be(ore t$e co%rt a .%o t$e &etitioner an! t$e res&on!ent $a! in min! onl' =.D. No. 1C58. 2$e &etitioner (%rt$er invo+e! t$e a(ore.%ote! )ection 18. None +ne, o( t$e re&eal o( t$e !ecree b' t$e LGC o( 1881. 3ven in $er instant &etition t$e &etitioner invo+es t$e !ecree an! )ection 18 o( t$e -evise! -%le on )%mmar' =roce!%re. Ho,ever t$e &rivate res&on!ents realiBing t$e ,ea+ness o( t$eir &osition %n!er =.D. No. 1C58 since t$e' !i! re(er t$eir grievances to ,$at mig$t be a ,rong (or%m %n!er t$e !ecree c$ange! tac+. *n t$eir Comment t$e' assert t$at on /5 #&ril 1881 #ta'!e "(ile! a com&laint against &etitioner be(ore t$e baranga' co%ncil o( Baranga' KalenB%ela Ma+ati in com&liance ,it$ t$e re.%irement o( t$e Matar%ngang =ambaranga' La, %n!er t$e LGC." :et in a !eliberate e((ort to be c%nning or s$re,! ,$ic$ is con!emnable (or it !isregar!s t$e virt%e o( can!or t$e' assert t$at t$e sai! la, is not a&&licable to t$eir cases be(ore t$e co%rt a .%o beca%se ;a< t$e &etitioner an! res&on!ent #ta'!e are not resi!ents o( baranga's in t$e
1/5

same cit' or m%nici&alit'A ;b< t$e la, !oes not a&&l' ,$en t$e action as in t$e sai! cases ma' ot$er,ise be barre! b' t$e stat%te o( limitationsA an! ;c< even ass%ming t$at t$e la, a&&lies inso(ar as #ta'!e is concerne! s$e $as s%bstantiall' com&lie! ,it$ it. 2$e O((ice o( t$e =rovincial =rosec%tor o( -iBal s$o%l! $ave e4erte! eno%g$ !iligence to in.%ire (rom t$e &rivate res&on!ents i( &rior re(erral to t$e l%&on ,as necessar' be(ore (iling t$e in(ormations. -es&on!ent 9%!ge !i! not !o an' better. His total %na,areness o( t$e LGC o( 1881 more s&eci(icall' on t$e &rovisions on t$e Matar%ngang &ambaranga' is !istressing. He s$o%l! $ave ta+en 9%!icial notice t$ereo( ever min!(%l t$at %n!er )ection 1 -%le 1/8 o( t$e -%les o( Co%rt co%rts are man!atoril' re.%ire! to ta+e 9%!icial notice o( "t$e o((icial acts o( t$e legislative e4ec%tive an! 9%!icial !e&artments o( t$e =$ili&&ines." 6e $ave r%le! t$at a 9%!ge is calle! %&on to e4$ibit more t$an 9%st a c%rsor' ac.%aintance ,it$ t$e stat%tes an! &roce!%ral r%les. /1 He s$o%l! $ave a&&lie! t$e revise! +atar%ngang &ambaranga' la, %n!er t$e LGC. Ha! $e !one so t$is &etition ,o%l! not $ave reac$e! %s an! ta+en val%able attention an! time ,$ic$ co%l! $ave been !evote! to more im&ortant cases. *n vie, o( t$e &rivate res&on!entsH (ail%re to a&&ear at t$e (irst sc$e!%le! me!iation on /8 #&ril 1881 (or ,$ic$ t$e me!iation ,as reset to /G Ma' 1881 no com&laint (or slig$t &$'sical in9%ries co%l! be vali!l' (ile! ,it$ t$e M2C o( Ma+ati at an' time be(ore s%c$ !ate. 2$e (iling t$en o( Criminal Cases Nos. 10C/11 an! 10C/10 ,it$ t$e sai! co%rt on 11 Ma' 1881 ,as &remat%re an! &%rs%ant to &aragra&$ ;a< )ection 01/ o( t$e LGC res&on!ent 7%!ge Contreras s$o%l! $ave grante! t$e motion to !ismiss t$e criminal cases. He cannot 9%sti(' its !enial b' ta+ing re(%ge %n!er )ection G o( =.D. No. 1C58 ;more &ro&erl' )ection 01/;b<;0< o( t$e LGC< ,$ic$ states t$at t$e &arties ma' go !irectl' to co%rt ,$ere t$e action is abo%t to &rescribe. 2$is is beca%se as earlier state! &%rs%ant to &aragra&$ ;c< )ection 015 o( t$e Co!e t$e &rescri&tive &erio! ,as a%tomaticall' s%s&en!e! (or a ma4im%m &erio! o( si4t' !a's (rom /1 #&ril 1881 ,$en t$e &rivate res&on!ents (ile! t$eir com&laints ,it$ t$e l%&on o( KalenB%ela Ma+ati.
Moreover $aving bro%g$t t$e !is&%te be(ore t$e l%&on o(

baranga' KalenB%ela Ma+ati t$e &rivate res&on!ents are esto&&e! (rom !isavo,ing t$e a%t$orit' o( t$e bo!' ,$ic$ t$e' t$emselves $a! so%g$t. 2$eir act o( tri(ling ,it$ t$e a%t$orit' o( t$e l%&on b' %n9%sti(iabl' (ailing to atten! t$e sc$e!%le! me!iation $earings an! instea! (iling t$e com&laint rig$t a,a' ,it$ t$e trial co%rt cannot be co%ntenance! (or to !o so ,o%l! ,rea+ $avoc on t$e baranga' conciliation s'stem. Granting arg%en!o t$at t$e &etitioner !i! in(lict t$e allege! &$'sical in9%ries t$e o((ense (or ,$ic$ s$e ma' be liable ,o%l! onl' be slig$t &$'sical in9%ries %n!er &aragra&$ ;/< #rticle /GG o( t$e -evise! =enal Co!e consi!ering t$at &er t$e me!ical certi(icates // t$e in9%ries s%staine! b' t$e &rivate res&on!ents ,o%l! "$eal" in nine !a's "in t$e absence o( com&lication" an! t$ere is no s$o,ing t$at t$e sai! in9%ries inca&acitate! t$em (or labor or ,o%l! re.%ire me!ical atten!ance (or s%c$ &erio!. 2$e &enalt' t$ere(or ,o%l! onl' be "arresto menor or a (ine not e4cee!ing /55 &esos an! cens%re." 2$ese &enalties are lig$t %n!er #rticle /C o( t$e -evise! =enal Co!e an! ,o%l! &rescribe in t,o mont$s &%rs%ant to #rticle 85. #ccor!ingl' since t$e slig$t &$'sical in9%ries c$arge! in Criminal Cases Nos. 10C/11 an! 10C/10 ,ere allege!l' in(licte! on 17 #&ril 1881 t$e &rescri&tive &erio! t$ere(or ,o%l! $ave e4&ire! t,o mont$s t$erea(ter. Nevert$eless its r%nning ,as tolle! b' t$e (iling o( t$e &rivate res&on!entsH com&laints ,it$ t$e l%&on o( KalenB%ela Ma+ati on /1 #&ril 1881 an! a%tomaticall' s%s&en!e! (or a &erio! o( si4t' !a's or %ntil // 7%ne 1881. *( no me!iation or conciliation co%l! be reac$e! ,it$in t$e sai! &erio! o( s%s&ension an! accor!ingl' a certi(ication to (ile action is iss%e! t$e &rivate res&on!ents ,o%l! still $ave (i(t'Dsi4 !a's ,it$in ,$ic$ to (ile t$eir se&arate criminal com&laints (or s%c$ o((ense. 3vi!entl' t$ere ,as no basis (or t$e invocation b' t$e res&on!ent 9%!ge o( t$e e4ce&tion &rovi!e! (or in &aragra&$ ;b< )ection 01/ o( t$e LGC. Neit$er are ,e &ers%a!e! b' t$e reasoning o( t$e res&on!ent 7%!ge t$at t$e &etitioner "$a! alrea!' ,aive! t$e rig$t to a reconciliation &rocee!ings be(ore t$e baranga' o( KalenB%ela Ma+ati consi!ering t$at t$e acc%se! an! t$e com&lainant are resi!ents o( !i((erent
1/1

baranga's." 2$e &etitioner !i! not ,aive t$e reconciliation &rocee!ings be(ore t$e l%&on o( KalenB%ela Ma+atiA s$e s%bmitte! to it an! atten!e! t$e sc$e!%le! conciliation on /8 #&ril 1881 an! invo+e! t$e &reDcon!ition o( re(erral to t$e l%&on in $er co%nterDa((i!avit. Nor ,o%l! t$is Co%rt acce&t t$e contention o( t$e &rivate res&on!ent t$at t$e &arties co%l! not agree on a com&romise an! t$at t$e' $a! to re.%est t$e baranga' ca&tain to iss%e a certi(ication to (ile action. 2$e re.%est is !ate! /1 7%ne 1881 or nearl' one an! a $al( mont$s a(ter Criminal Cases Nos. 10C/11 an! 10C/10 ,ere (ile! ,it$ t$e co%rt a .%o. 3vi!entl' t$is ,as !one to s%&&ort t$eir contention in t$e sai! co%rt t$at in an' event t$ere ,as s%bstantial com&liance ,it$ t$e re.%irement o( re(erral to t$e l%&on. *t m%st be stresse! t$at t$e &rivate res&on!ents a(ter (ailing to a&&ear at t$e initial con(rontation an! long a(ter t$e criminal cases ,ere (ile! $a! no rig$t to !eman! t$e iss%ance o( a certi(ication to (ile action. 2$e res&on!ent 9%!ge t$%s acte! ,it$ grave ab%se o( !iscretion in re(%sing to !ismiss Criminal Cases Nos. 10C/11 an! 10C/10. =arties to !is&%tes cogniBable b' t$e l%&on s$o%l! ,it$ sincerit' e4$a%st t$e reme!ies &rovi!e! b' t$at la, government &rosec%tors s$o%l! e4ercise !%e !iligence in ascertaining com&liance ,it$ it an! trial co%rts s$o%l! not $esitate to im&ose t$e a&&ro&riate sanctions (or nonD com&liance t$ereo(. 7ingarts v. Me3ia Facts: #!ministrative com&laints ,ere (ile! against 7%!ge Me9ia in connection ,it$ 1 criminal cases !eci!e! b' $im. One o( t$em is Crim. Case /GG0 ,$ic$ ,as (ile! b' Col. M%nar against 7o$an 6ingarts (or grave t$reats. *nitiall' 7%!ge Me9ia too+ cogniBance o( t$e case an! iss%e! a ,arrant o( arrest against 6ingart. Ho,ever $e later !ismisse! t$e same an! in!orse! it to t$e baranga' o((icial concerne! (or baranga' conciliation. *n t$e &resent case 6ingarts c$arges 7%!ge Me9ia ,it$ incom&etence ignorance o( t$e la, an! ab%se o( a%t$orit' (or ta+ing cogniBance o( Crim Case /GG0 an! iss%ing a ,arrant o( arrest !es&ite t$e lac+ o( &rior baranga' conciliation. *n its Memoran!%m t$e O((ice o( t$e Co%rt #!ministrator ma!e t$e (ollo,ing (in!ings:t$at %n!er #rt. 058;c< C$a&ter 7 2itle One Boo+ *** LocGov Co!e o((enses &%nis$able b' im&risonment not e4cee!ing 1 'ear or a (ine not e4cee!ing =C 555 re.%ire &rior baranga' conciliation. t$at t$e crime o( grave t$reats (alls ,it$in t$e &%rvie, o( t$is section. t$at #rt. 01/;a< li+e,ise &rovi!e! t$e (ollo,ing: CONC*L*#2*ON D ;a< =recon!ition to (iling o( Com&laint in Co%rt D No com&laint &etition action or &rocee!ing involving an' matter ,it$in t$e a%t$orit' o( t$e l%&on s$all be (ille! ;)*C< or instit%te! !irectl' in co%rt or an' ot$er government o((ice (or a!9%!ication %nless t$ere $as been a con(rontation bet,een t$e &arties be(ore t$e l%&on c$airman or t$e &ang+at an! t$at no conciliation or settlement $as been reac$e! as certi(ie! b' t$e l%&on secretar' or &ang+at secretar' as atteste! to b' t$e l%&on or &ang+at c$airman or %nless t$e settlement $as been re&%!iate! b' t$e &arties t$ereto. 2$e Co%rt #!ministrator later concl%!e! t$e (ollo,ing: "Ha! res&on!ent 7%!ge observe! t$e man!ate o( t$e a(ore.%ote! &rovision o( la, $e co%l! $ave reman!e! t$e case to t$e l%&on instea! o( ta+ing cogniBance t$ereo( an! &remat%rel' iss%ing t$e ,arrant o( arrest against t$e acc%se!. )%c$ an act%ation $o,ever !oes not a&&ear to be tainte! ,it$ malice or evil intent. #s can be gleane! (rom t$e recor!s res&on!ent 7%!ge !ismisse! Criminal Case No. /GG0 in $is Or!er o( #&ril 1G 1881 %&on motion o( t$e !e(ense co%nsel. 2$is not,it$stan!ing a!ministrative sanction is ,arrante! against res&on!ent 7%!ge. *ss%e: 6ON 7%!ge Me9ia is liable (or incom&etence an! gross ignorance o( t$e la, (or ta+ing cogniBance o( t$e case ,$en s%c$ ,as not (irst s%bmitte! to t$e Matar%ngang =ambaranga' (or conciliation. :3). #lt$o%g$ t$ere is no clear &roo( o( malice ba! (ait$ bias or &artialit' on $is &art 7%!ge Me9ia s$o%l! $ave e4ercise! t$e re.%isite &r%!ence es&eciall' %n!er t$e environmental circ%mstances o( t$e a(oresai! criminal case ,$ere &ersonal libert' ,as involve!. He s$o%l! $ave care(%ll' e4amine! all relevant (acts an! iss%es an! avoi!e! t$e im&rovi!ent iss%ance o( t$e ,arrant o( arrest ,it$o%t a circ%ms&ect revie, o( t$e case ,$ic$ a(ter all !i! not e4$ibit abstr%se (act%al matters or com&licate! legal .%estions. 2$e &resent controvers' co%l! $ave been avoi!e! $a! $e +e&t (ait$ ,it$ t$e in9%nction t$at a member o( t$e benc$ m%st contin%o%sl' +ee& $imsel( abreast o( legal an! 9%ris&r%!ential !evelo&ments beca%se t$e learning &rocess in la, never ceases. #bsence o( ba! (ait$ P (act t$at 7%!ge
1//

Me9ia s%bse.%entl' iss%e! an or!er to recall t$e ,arrant o( arrest mitigates b%t ,ill not altoget$er e4c%l&ate $im (rom t$e c$arge. 7%!ge Me9ia ,as or!er to &a' a =/ 555 (ine ,it$ stern ,arning. 7%!ges are !irecte! to !esist (rom im&rovi!entl' receiving an! !es%ltoril' acting on com&laints &etitions actions or &rocee!ings in cases (alling ,it$in t$e a%t$orit' o( t$e L%&on 2aga&ama'a&a. =rocee!ings be(ore t$e l%&on are a &recon!ition to t$e (iling o( an' action or &rocee!ing in co%rt or ot$er government o((ice. )%c$ an initiator' &lea!ing i( (ile! ,it$o%t com&liance ,it$ t$e &recon!ition ma' be !ismisse! on motion o( an' intereste! &art' on t$e gro%n! t$at it (ails to state a ca%se o( action. Corpuz v. CA Facts: Cor&%B (ile! an action (or %nla,(%l !etainer against &rivate res&on!ent #lvara!o ,it$ t$e Metro&olitan 2rial Co%rt o( Manila Branc$ G (or recover' o( &ossession o( t$e room being occ%&ie! b' t$e latter ,$ic$ Cor&%BH c$il!ren allege!l' nee!e! (or t$eir o,n %se. #lvara!o an! Cor&%B ,ere t,o o( t$e tenants o( a certain LorenBo Barre!o ,$o in Ma' 1888 !eci!e! to sell $is &ro&ert' to t$e tenants. D%e to economic !i((ic%lties $o,ever #lvara!o an! t$e ot$er lessees e4ec%te! an "#((i!avit o( 6aiver" granting Barre!o t$e rig$t to sell $is $o%se to an' &erson ,$o can a((or! to &%rc$ase t$e same. Conse.%entl' Barre!o sol! $is $o%se to Cor&%B (or =17 C55.55. #s a res%lt o( t$e sale a tenanc' relations$i& ,as establis$e! bet,een Cor&%B an! #lvara!o. *n October 1881 Cor&%B sent a ,ritten notice to #lvara!o !eman!ing t$at $e vacate t$e room ,$ic$ $e ,as occ%&'ing beca%se t$e c$il!ren o( Cor&%B nee!e! it (or t$eir o,n %se. #lvara!o re(%se! to vacate t$e room as !eman!e! &rom&ting Cor&%B to see+ $is e9ectment. *n $is ans,er #lvara!o raise! t,o ma9or !e(enses to ,it: ;1< t$e allege! "#((i!avit o( 6aiver" e4ec%te! bet,een $im an! Barre!o ,as a (orger'A an! ;/< t$e !is&%te ,as not re(erre! to t$e L%&ong 2aga&a'a&a. Fin!ing t$e !e(enses o( #lvara!o to be ,it$o%t merit t$e M2C o( Manila $an!e! !o,n on a !ecision or!ering #lvara!o to vacate t$e room. On a&&eal t$e -2C reverse! an! !eci!e! t$at t$e &%r&orte! sale bet,een Cor&%B an! Barre!o ,as t$e s%b9ect o( a controvers' &en!ing be(ore t$e National Ho%sing #%t$orit' ;NH#< ,$ic$ m%st be resolve! (irst b' sai! agenc'. *t also concl%!e! t$at t$e "#((i!avit o( 6aiver" e4ec%te! b' #lvara!o an! Barre!o ,as a (orger'. Conse.%entl' it or!ere! t$e !ismissal o( t$e case (or %nla,(%l !etainer an! r%le! t$at #lvara!o cannot be legall' e4&elle! (rom t$e s%b9ect &remises. M!enie!. C# a((irme!. M- !enie!. *ss%es: 1. 6ON Cor&%BH %nla,(%l !etainer s%it (ile! be(ore t$e M2C against #lvara!o s$o%l! be s%s&en!e! %ntil t$e resol%tion o( t$e case lo!ge! in t$e NH# im&%gning t$e sale o( sai! &ro&ert' /. 6ON t$e "#((i!avit o( 6aiver" bet,een Cor&%B an! Barre!o ,as a%t$entic *t is elementar' t$at t$e M2C $as e4cl%sive 9%ris!iction over e9ectment cases. #s t$e la, no, stan!s t$e onl' iss%e to be resolve! in (orcible entr' an! %nla,(%l !etainer cases is t$e &$'sical or material &ossession over t$e real &ro&ert' t$at is &ossession !e (acto. -e(%gia v.C#: "*n t$e case o( De la )anta vs. Co%rt o( #&&eals et al. t$is Co%rt in ma+ing a !istinction bet,een t$e rece&tion o( evi!ence an! t$e resol%tion o( t$e iss%e o( o,ners$i& $el! t$at t$e in(erior co%rt ma' loo+ into t$e evi!ence o( title or o,ners$i& an! &ossession !e 9%re inso(ar as sai! evi!ence ,o%l! in!icate or !etermine t$e nat%re o( &ossession. *t cannot $o,ever resolve t$e iss%e o( o,ners$i& t$at is b' !eclaring ,$o among t$e &arties is t$e tr%e an! la,(%l o,ner o( t$e s%b9ect &ro&ert' beca%se t$e resol%tion o( sai! iss%e ,o%l! e((ect an a!9%!ication on o,ners$i& ,$ic$ is not sanctione! in t$e s%mmar' action (or %nla,(%l !etainer. 6it$ t$is as a &remise an! ta+ing into consi!eration t$e amen!ment intro!%ce! b' Batas =ambansa Blg. 1/8 it ma' be s%ggeste! t$at in(erior co%rts are no, con!itionall' veste! ,it$ a!9%!icator' &o,er over t$e iss%e o( title or o,ners$i& raise! b' t$e &arties in an e9ectment s%it." )ince t$e &resent &etition involves t$e iss%e o( &ossession intert,ine! ,it$ t$e iss%e o( o,ners$i& ;i.e. t$e controvers' &en!ing in t$e NH#< t$e !octrinal &rono%ncement in -e(%gia is a&&licable. 2$e &revailing !octrine is t$at s%its or actions (or t$e ann%lment o( sale title or !oc%ment !o not abate an' e9ectment action res&ecting t$e same &ro&ert'. 6ilmor #%to )%&&l' Constr%ction Com&an' Cor&orations et al. v. C#: o%tline! t$e (ollo,ing cases involving t$e ann%lment o( t$e title or !oc%ment over t$e &ro&ert' ,$ic$
1/1

s$o%l! not be consi!ere! in t$e abatement o( an e9ectment s%it to ,it: "Neit$er !o s%its (or ann%lment o( sale or title or !oc%ment a((ecting &ro&ert' o&erate to abate e9ectment actions res&ecting t$e same &ro&ert'. Clearl' t$e %n!erl'ing reason (or t$e above r%lings is (or t$e !e(en!ant not to tri(le ,it$ t$e e9ectment s%it ,$ic$ is s%mmar' in nat%re b' t$e sim&le e4&e!ient o( asserting o,ners$i& t$ereon. 2$%s t$e controvers' &en!ing be(ore t$e NH# (or t$e ann%lment o( t$e Dee! o( )ale an! assailing t$e a%t$enticit' o( t$e "#((i!avit o( 7oint 6aiver" cannot !eter t$e M2C (rom ta+ing cogniBance o( t$e e9ectment s%it merel' (or t$e &%r&ose o( !etermining ,$o $as a better &ossessor' rig$t among t$e &arties. *t ma' be stresse! t$at #lvara!o is not ,it$o%t reme!'. 6e $ave r%le! t$at a 9%!gment ren!ere! in an e9ectment case s$all not bar an action bet,een t$e same &arties res&ecting title to t$e lan! or b%il!ing nor s$all it be concl%sive as to t$e (acts t$erein (o%n! in a case bet,een t$e same &arties %&on a !i((erent ca%se o( action involving &ossession. F%rt$ermore #lvara!o raises t$e iss%e in t$e instant &etition t$at t$e e9ectment s%it ,as not re(erre! to t$e L%&on 2aga&a'a&a as re.%ire! b' =resi!ential Decree No. 1C58. 6e are not &ers%a!e!. 2$is !e(ense ,as onl' state! in a single general s$ort sentence in #lvara!oHs ans,er. 6e $ave $el! in D%i v. Co%rt o( #&&eals t$at (ail%re o( a &art' to s&eci(icall' allege t$e (act t$at t$ere ,as no com&liance ,it$ t$e Baranga' conciliation &roce!%re constit%tes a ,aiver o( t$at !e(ense. # &er%sal o( #lvara!oHs ans,er reveals t$at no reason or e4&lanation ,as given to s%&&ort $is allegation ,$ic$ is !eeme! a mere general averment. *n an' event t$e &rocee!ing o%tline! in =.D. 1C58 is not a 9%ris!ictional re.%irement an! nonDcom&liance t$ere,it$ cannot a((ect t$e 9%ris!iction ,$ic$ t$e lo,er co%rt $a! alrea!' ac.%ire! over t$e s%b9ect matter an! t$e &arties t$erein.
1/0

be$in! s%c$ or!er an! $e ,as a!vise! t$at &er$a&s $e s$o%l! s%bmit t$e min%tes o( t$e $earings $el! in t$e baranga'. Follo,ing sai! a!vice $e (ile! a com&liance ,it$ res&on!ent>s co%rt attac$ing t$ere,it$ a co&' o( $is com&laint (ile! be(ore t$e baranga' an! t$e min%tes o( t$e &rocee!ings $el! t$ereat. #(ter t$e (iling o( sai! com&liance no action ,as ta+en b' t$e co%rt !es&ite t$e (act t$at t$e case (alls %n!er t$e -%le on )%mmar' =roce!%re an! res&on!ent 9%!ge $as still to come %& ,it$ a !etermination as to ,$et$er s%mmons s$o%l! be iss%e! or not. He t$en in.%ire! &ersonall' ,it$ t$e co%rt abo%t t$e stat%s o( t$e case an! $e ,as tol! t$at no action co%l! be ta+en %nless t$e Or!er o( #&ril / 188G $a! been com&lie! ,it$. Disma'e! b' t$e Co%rt>s insistence o( re(erring t$e case to t$e baranga' t$o%g$ it $a! alrea!' gone t$ro%g$ all t$e re.%isite &rocee!ings t$ereat $e !eci!e! not to &%rs%e t$e case an! (ile! a notice to ,it$!ra, com&laint !ate! #%g%st /5 188G. )ai! ,it$!ra,al $o,ever ,as !enie! b' res&on!ent on t$e basis o( t$e action alrea!' ta+en t$ereon as containe! in t$e .%estione! Or!er !ate! #&ril / 188G. He t$en (ile! a Notice o( Dismissal b%t t$e same ,as still %nacte! %&on b' res&on!ent. *t ,as onl' a(ter a 'ear (rom t$e time t$e com&laint ,as (ile! t$at res&on!ent or!ere! t$at s%mmons be serve! on !e(en!ants. 6$en !e(en!ants (aile! to (ile an #ns,er $e ;com&lainant< (ile! a Motion to -en!er 7%!gment in accor!ance ,it$ t$e &rovisions o( )ec.C o( t$e -%le on )%mmar' =roce!%re. Ho,ever instea! o( ren!ering 9%!gment res&on!ent merel' re.%ire! !e(en!ants to comment on t$e motion to ren!er 9%!gment. #(ter !e(en!ants (ile! t$eir comment res&on!ent still !i! not act on t$e sai! motion. 2$e inor!inate !ela' o( res&on!ent on acting %&on sai! case $as ca%se! $im so m%c$ s%((ering as $is (amil' is (orce! to rent a $o%se to live in at a mont$l' rental rate o( =18 555.55. -es&on!ent>s arg%ment: *n all cases ,$ere t$ere is (ail%re o( settlement o( me!iation &rocee!ings be(ore t$e Baranga' C$airman it is necessar' t$at t$e =ang+at be constit%te! b' t$e &arties (rom t$e L%&on members in or!er t$at t$e' ma' $ave a secon! o&&ort%nit' to amicabl' settle t$eir !is&%te. *t is a man!ator' !%t' o( t$e Baranga' C$airman to set t$e meeting o( t$e &arties (or t$e constit%tion o( t$e =ang+at %&on (ail%re o( &arties to amicabl' settle ot$er,ise t$ere is no com&liance ,it$ t$e re.%irements o( =.D. 1C58 no, )ec. 01/ 1881 LGC. *n t$e case o( com&lainant it a&&ears (rom t$e recor!s t$ereo( t$at t$ere ,as
Boni!acio La" O!!ice v. Bellosillo Facts: *n a letterDcom&laint !ate! #%g%st /8 1887 #tt'. -icar!o M. )alomon 7r. o( t$e Boni(acio La, O((ice c$arge! t$en acting 7%!ge -e'nal!o B. Bellosillo o( t$e Metro&olitan 2rial Co%rt o( W%eBon Cit' Branc$ 10 ,it$ ignorance o( t$e la, grave ab%se o( !iscretion an! obvio%s &artialit'. )alomon assails t$e Or!er !ate! #&ril / 188G re(erring t$e sai! e9ectment case bac+ to t$e baranga' (or conciliation &rocee!ings !es&ite t$e (act t$at it ,as allege! in t$e veri(ie! com&laint t$at t$e matter $a! alrea!' been re(erre! to t$e baranga' an! t$at a co&' o( t$e Certi(ication to File Motion ,as attac$e! UtoV t$e veri(ie! com&laint as #NN3J 3 t$ereo(. Be,il!ere! ,it$ s%c$ Or!er $e trie! to tal+ ,it$ res&on!ent 9%!ge b%t ,as &revente! to !o so beca%se o( t$e strict an! e4tremel' tig$t ]cor!on sanitaire> o( t$e latter. He t$en in.%ire! (rom t$e res&on!ent>s branc$ cler+ o( co%rt t$e reason
1/C

&remat%re iss%ance o( t$e Certi(icate to File #ction consi!ering t$at t$ere is no &roo( to s$o, t$at t$e =ang+at ,as !%l' constit%te! be(ore t$e sai! certi(icate ,as iss%e!. Moreover t$e belate! s%bmission b' com&lainant o( t$e Min%tes o( =rocee!ings be(ore t$e Baranga' C$airman ,$ic$ ,as inacc%rate an! !i((ic%lt to !eci&$er glaringl' reveals t$e nonDcom&liance o( com&lainant ,it$ t$e re.%irement o( t$e a(orecite! la,. *ss%e: 6ON 7%!ge ,as correct inre(erring t$e case bac+ to t$e baranga' (or conciliation &rocee!ings. :3). Com&lainant conten!s t$at $e $as com&lie! ,it$ t$e man!ator' baranga' conciliation &rocee!ings as evi!ence! b' t$e Certi(ication to File #ction attac$e! to t$e Com&laint (or e9ectment. 2$e recor!s $o,ever reveal t$at s%c$ Certi(ication ,as im&ro&erl' an! &remat%rel' iss%e!. *n ,$at a&&ears to be a &reD&rinte! stan!ar! (orm t$ereo( t$e E4F be(ore t$e secon! en%merate! statement clearl' s$o,s t$at no &ersonal con(rontation be(ore a !%l' constit%te! =ang+at ng 2aga&ag+as%n!o too+ &lace. -es&on!ent>s &osition t$at t$e =ang+at ,as not constit%te! an! t$at no (ace to (ace conciliation o( t$e &arties $a! ta+en &lace be(ore it is s%bstantiate! b' t$e Min%tes s%bmitte! b' com&lainant. 3vi!entl' com&lainant (aile! to com&lete t$e baranga' conciliation &rocee!ings. 6e also note t$at t$e Com&laint be(ore t$e baranga' ,as !ate! Febr%ar' 1G 188G. -ecor!s s$o, t$at t$e $earing ,as sc$e!%le! (or Febr%ar' /G 188G an! ,as reset (or Febr%ar' /8 188G. #n! 'et t$e Certi(ication to File #ction U8V ,as iss%e! on Marc$ 1 188G less t$an (i(teen !a's a(ter t$e (irst sc$e!%le! $earing be(ore t$e baranga' c$airman. )ection 015 ;b< o( t$e LGC is .%ote! $ere%n!er: EMe!iation b' l%&on c$airman. X @&on recei&t o( t$e com&laint t$e l%&on c$airman s$all ,it$in t$e ne4t ,or+ing !a' s%mmon t$e res&on!ent;s< ,it$ notice to t$e com&lainant;s< (or t$em an! t$eir ,itnesses to a&&ear be(ore $im (or a me!iation o( t$eir con(licting interests. *( $e (ails in $is me!iation e((ort ,it$in (i(teen ;1C< !a's (rom t$e (irst meeting o( t$e &arties be(ore $im $e s$all (ort$,it$ set a !ate (or t$e constit%tion o( t$e &ang+at in accor!ance ,it$ t$e &rovisions o( t$is C$a&ter.F #!ministrative Circ%lar No. 10D81 &rovi!es: E*n or!er t$at t$e la%!able &%r&ose o( t$e la, ma' not be s%bverte! an! its e((ectiveness %n!ermine! b' in!iscriminate im&ro&er an!?or &remat%re iss%ance o( certi(ications to (ile actions in co%rt b' t$e L%&on or =ang+at )ecretaries atteste! b' t$e L%&on?=ang+at C$airmen res&ectivel' t$e (ollo,ing g%i!elines are $ereb' iss%e! (or t$e in(ormation o( trial co%rt 9%!ges in cases bro%g$t be(ore t$em coming (rom t$e Baranga'. EU**V 0. *( me!iation or conciliation e((orts be(ore t$e =%nong Baranga' &rove! %ns%ccess(%l t$ere $aving been no agreement to arbitrate ;)ec. 015D^b_ -evise! -%le Matar%ngang =ambaranga' La,A )ec. 1 c U1V -%le *** Matar%ngang =ambaranga' -%les< or ,$ere t$e res&on!ent (ails to a&&ear at t$e me!iation &rocee!ing be(ore t$e =%nong Baranga' ;1r! &ar. )ec. 8 a -%le K* Matar%ngang =ambaranga' -%les< t$e =%nong Baranga' s$all not ca%se t$e iss%ance o( t$is stage o( a certi(ication to (ile action beca%se it is no, man!ator' (or $im to constit%te t$e =ang+at be(ore ,$om me!iation conciliation or arbitration &rocee!ings s$all be $el!. ***. #ll com&laints an!?or in(ormations (ile! or ra((le! to 'o%r sala?branc$ o( t$e -egional 2rial Co%rt Metro&olitan 2rial Co%rt or M%nici&al 2rial Co%rt s$all be care(%ll' rea! an! scr%tiniBe! to !etermine i( t$ere $as been com&liance ,it$ &rior Baranga' conciliation &roce!%re %n!er t$e -evise! Matar%ngang =ambaranga' La, an! its *m&lementing -%les an! -eg%lations as a &reDcon!ition to 9%!icial action &artic%larl' ,$et$er t$e certi(ication to (ile action attac$e! to t$e recor!s o( t$e case com&l' ,it$ t$e re.%irements $ereinabove en%merate! in &art **A ;3m&$asis an! italics s%&&lie!< *K. # case (ile! in co%rt ,it$o%t com&liance ,it$ &rior Baranga' conciliation ,$ic$ is a &reDcon!ition (or (ormal a!9%!ication 4 4 4 ma' be !ismisse! %&on motion o( t$e !e(en!ant?s or t$e co%rt ma' s%s&en! &rocee!ings %&on &etition o( an' &art'an! re(er t$e case mot% &ro&rio to t$e a&&ro&riate Baranga' a%t$orit'. 3vi!entl' t$e baranga' (aile! to e4ert eno%g$ e((ort re.%ire! b' la, to conciliate bet,een t$e &arties an! to settle t$e case be(ore it. Hence res&on!ent 9%!ge ,as not incorrect in reman!ing t$e case to it (or com&letion o( t$e man!ate! &rocee!ings. 6e cannot (a%lt $im (or see+ing to &romote t$e ob9ectives o( baranga' conciliation an! (or ta+ing to $eart t$e &rovisions o( )%&reme Co%rt Circ%lar No. 10D81. His re(erral o( t$e case bac+ to t$e baranga' cannot
1/G

be e.%ate! ,it$ gross ignorance o( t$e la,. Neit$er !oes it constit%te grave ab%se o( !iscretion or obvio%s &artialit'. 2$erea(ter com&lainant (ile! a Motion &ra'ing t$at t$e &rocee!ings alrea!' $el! be(ore t$e baranga' be consi!ere! as s%bstantial com&liance ,it$ t$e re.%irements o( t$e la,. #cting on t$e Motion res&on!ent 9%!ge iss%e! t$e s%mmons an! o&te! to contin%e ,it$ t$e co%rt &rocee!ings ,it$o%t insisting on strict com&liance ,it$ t$e man!ate! baranga' &rocee!ings. He !i! so a(ter noting t$at com&lainant ,as a&&arentl' not ma+ing an' move to com&lete t$e baranga' &rocee!ings a(ter t$e case $a! been reman!e! to t$e baranga' an! t$at t$e case (ell %n!er t$e -%les on )%mmar' =roce!%re. )ection 18 o( t$e -%les on )%mmar' =roce!%re $o,ever &rovi!es t$at s%c$ cases ma' be revive! onl' a(ter t$e re.%irement (or conciliation $as been com&lie! ,it$. Nevert$eless res&on!ent 9%!ge>s error is 9%!icial in nat%re an! cannot be correcte! in a!ministrative &rocee!ings. #t an' rate beca%se $e c$ose to contin%e ,it$ t$e &rocee!ings o( t$e case an! beca%se res&on!ents (aile! to ans,er t$e e9ectment Com&laint on time $e s$o%l! $ave ren!ere! 9%!gment ,it$in t$irt' ;15< !a's (rom t$e e4&iration o( t$e &erio! to (ile an ans,er. 2$is action is re.%ire! %n!er t$e -%les on )%mmar' =rocee!ings ,$ic$ state: E)ec. G. 3((ect o( (ail%re to ans,er. D )$o%l! t$e !e(en!ant (ail to ans,er t$e com&laint ,it$in t$e &erio! above &rovi!e! t$e co%rt mot% &ro&rio or on motion o( t$e &lainti(( s$all ren!er 9%!gment as ma' be ,arrante! b' t$e (acts allege! in t$e com&laint an! limite! to ,$at is &ra'e! (or t$erein E)ec. 15. -en!ition o( 9%!gment. X 6it$in t$irt' ;15< !a's a(ter recei&t o( t$e last a((i!avits an! &osition &a&ers or t$e e4&iration o( t$e &erio! (or (iling t$e same t$e co%rt s$all ren!er 9%!gment.F Men ova v. A!able Facts: *n an a((i!avitDcom&laint !ate! 7%l' 1 1888 #bra$am L. Men!ova c$arge! 7%!ge Crisanto B. #(able o( t$e M%nici&al Circ%it 2rial Co%rt o( )an 7%lianX)%lat 3astern )amar ,it$ ignorance o( t$e la, relative to Criminal Case No. /188D88 E=eo&le o( t$e =$ili&&ines =lainti(( vs. -oberto W. =ala!a #cc%se! F (or slig$t &$'sical in9%ries. Com&lainant Men!ova allege! in $is a((i!avitD com&laint t$at on Febr%ar' 18 1888 $e (ile! ,it$ t$e O((ice o( t$e Baranga' C$airman o( =oblacion )an 7%lian 3astern )amar a com&laint (or slig$t &$'sical in9%ries against -obert =ala!a. Baranga' C$airman -onie D. W%int%a in $is Certi(ication !ate! #&ril 18 1888 U1V con(irme! s%c$ (act. =ang+at C$airman 3%(emia L. Cabago also certi(ie! in an %n!ate! EMin%tes *n )ettling Dis&%tesF t$at t$e case ,as set (or $earing on Marc$ 1G // an! /8 1888 b%t t$e &arties (aile! to reac$ an amicable settlement. On Ma' 0 1888 com&lainant (ile! ,it$ t$e M%nici&al Circ%it 2rial Co%rt o( )an 7%lianX)%lat 3astern )amar a com&laint (or slig$t &$'sical in9%ries against =ala!a !oc+ete! as Criminal Case No. /188D88. On November 1 1888 res&on!ent 9%!ge ren!ere! $is Decision !ismissing t$e case on t$e gro%n! o( &rescri&tion t$%s: "Com&laint in t$is case !ate! #&ril /5 1888 ,as (ile! ,it$ t$is Co%rt on Ma' 0 1888. 2$e a((i!avits o( com&lainant as ,ell as &rosec%tion ,itness Melvin C. W%iloRa ,ere s%bscribe! an! s,orn to be(ore t$e %n!ersigne! also on Ma' 0 1888. E2$e allege! o((ense too+ &lace on Febr%ar' 1C 1888. From t$e !ate o( t$e commission o( t$e allege! o((ense more t$an t,o mont$s $ave ela&se!. E2$is is (or slig$t &$'sical in9%ries an! is t$ere(ore a lig$t o((ense. E@n!er #rt. 88 o( t$e -evise! =enal Co!e criminal liabilit' is totall' e4ting%is$e! b' &resci&tion o( t$e crime. E#rticle 85 o( t$e same Co!e &rovi!es t$at lig$t o((enses &rescribe in t,o mont$s. 2$is being a lig$t o((ense t$e same s$o%l! be consi!ere! as alrea!' $aving &rescribe! beca%se t$e case against t$e acc%se! ,as (ile! a(ter t,o mont$s. EL32 2H3-3FO-3 t$is case be D*)M*))3D t$e crime $aving alrea!' &rescribe!. E)O O-D3-3D.F On 7%l' 7 1888 com&lainant (ile! ,it$ t$e O((ice o( t$e Co%rt #!ministrator an a!ministrative com&laint against res&on!ent 9%!ge. He allege! t$at in !ismissing t$e case res&on!ent 9%!ge s$o,e! $is ignorance o( t$e la, ,$en $e !i! not a&&l' t$e &rovisions o( )ection 015;c< o( -e&%blic #ct No. 71G5 ;2$e LGC< ,$ic$ state: )ection 015. =roce!%re (or #micable )ettlement ;c< )%s&ension o( &rescri&tive &erio! o( o((enses. X 6$ile t$e !is&%te is %n!er me!iation conciliation or arbitration t$e &rescri&tive &erio!s (or o((enses an! ca%ses o( action %n!er e4isting la,s s$all be interr%&te! %&on (iling o( t$e com&laint ,it$ t$e =%nong Baranga'. 2$e &rescri&tive &erio!s s$all res%me %&on recei&t b' t$e com&lainant o( t$e com&laint or t$e certi(icate o( re&%!iation or o( t$e certi(ication to (ile action iss%e! b' t$e L%&on
1/7

or =ang+at )ecretar': =rovi!e! $o,ever 2$at s%c$ interr%&tion s$all not e4cee! si4t' ;G5< !a's (rom t$e (iling o( t$e com&laint ,it$ t$e &%nong baranga'." Com&lainant (%rt$er allege! t$at res&on!entHs con!%ct ca%se! $im in9%r' an! grave in9%stice. *n $is comment !ate! )e&tember 11 1888 res&on!ent a!mitte! t$at $is Decision being assaile! b' com&lainant E,as ,rong.F #ccor!ing to $im E;,<$en * ren!ere! t$e .%estione! !ecision ,$at entere! m' min! ,as t$e r%le on &rescri&tion as &rovi!e! %n!er t$e -evise! =enal Co!e. 2$ere ,as a mental la&se on m' &art ca%se! b' $eav' ,or+loa! F as $e ,as li+e,ise !esignate! t$e #cting =resi!ing 7%!ge o( MC2C LlorenteDHernani 3astern )amar. He begge! (or +in!ness an! %n!erstan!ing stating t$at $e $as been a trial 9%!ge (or 15 'ears an! t$at t$is is t$e E(irst +in! o( mista+eF $e $as ever committe!. *n its 3val%ation an! -ecommen!ation t$e O((ice o( t$e Co%rt #!ministrator t$ro%g$ De&%t' Co%rt #!ministrator Zenai!a N. 3le&aRo (o%n! res&on!ent g%ilt' as c$arge! an! recommen!e! t$at $e be (ine! =1 555.55 ,it$ a ,arning t$at a commission o( similar acts ,ill be !ealt ,it$ more severel'. Bot$ &arties (ile! t$eir res&ective mani(estations t$at t$e' are ,illing to $ave t$e case so !eci!e!. *n $is mani(estation res&on!ent 9%!ge ma!e t$e a!!itional comment t$at t$e com&lainant !i! not allege ba! (ait$ or malice on $is ;res&on!ent>s< &art in ren!ering t$e .%estione! !ecision. *ss%e: 1. 6ON res&on!ent 7%!ge is liable (or !ismissing t$e case on t$e gro%n! o( &rescri&tion. *t is a4iomatic as t$is Co%rt $as re&eate!l' stresse! t$at an a!ministrative com&laint is not t$e a&&ro&riate reme!' (or ever' irreg%lar or erroneo%s or!er or !ecision iss%e! b' a 9%!ge ,$ere a 9%!icial reme!' is available s%c$ as a motion (or reconsi!eration or an a&&eal. For obvio%sl' i( s%bse.%ent !evelo&ments &rove t$e 9%!ge>s c$allenge! act to be correct t$ere ,o%l! be no occasion to &rocee! against $im at all. Besi!es to $ol! a 9%!ge a!ministrativel' acco%ntable (or ever' erroneo%s r%ling or !ecision $e ren!ers ass%ming $e $as erre! ,o%l! be not$ing s$ort o( $arassment an! ,o%l! ma+e $is &osition !o%bl' %nbearable. 2o $ol! ot$er,ise ,o%l! be to ren!er 9%!icial o((ice %ntenable (or no one calle! %&on to tr' t$e (acts or inter&ret t$e la, in t$e &rocess o( a!ministering 9%stice can be in(allible in $is 9%!gment. *t is onl' ,$ere t$e error is so gross !eliberate an! malicio%s or inc%rre! ,it$ evi!ent ba! (ait$ t$at a!ministrative sanctions ma' be im&ose! against t$e erring 9%!ge. Flores vs. #besamis: E#s ever'one +no,s t$e la, &rovi!es am&le 9%!icial reme!ies against errors or irreg%larities being committe! b' a 2rial Co%rt in t$e e4ercise o( its 9%ris!iction. 2$e or!inar' reme!ies against errors or irreg%larities ,$ic$ ma' be regar!e! as normal in nat%re ;i.e. error in a&&reciation or a!mission o( evi!ence or in constr%ction or a&&lication o( &roce!%ral or s%bstantive la, or legal &rinci&le< incl%!e a motion (or reconsi!eration ;or a(ter ren!ition o( a 9%!gment or (inal or!er a motion (or ne, trial< an! a&&eal. 2$e e4traor!inar' reme!ies against error or irreg%larities ,$ic$ ma' be !eeme! e4traor!inar' in c$aracter ;i.e. ,$imsical ca&ricio%s !es&otic e4ercise o( &o,er or neglect o( !%t' etc.< are inter alia t$e s&ecial civil actions o( certiorari &ro$ibition or man!am%s or a motion (or in$ibition a &etition (or c$ange o( ven%e as t$e case ma' be. ENo, t$e establis$e! !octrine an! &olic' is t$at !isci&linar' &rocee!ings an! criminal actions against 7%!ges are not com&lementar' or s%&&letor' o( nor a s%bstit%te (or t$ese 9%!icial reme!ies ,$et$er or!inar' or e4traor!inar'. -esort to an! e4$a%stion o( t$ese 9%!icial reme!ies as ,ell as t$e entr' o( 9%!gment in t$e corres&on!ing action or &rocee!ing are &reDre.%isites (or t$e ta+ing o( ot$er meas%res against t$e &ersons o( t$e 9%!ges concerne! ,$et$er o( civil a!ministrative or criminal nat%re. *t is onl' a(ter t$e available 9%!icial reme!ies $ave been e4$a%ste! an! t$e a&&ellate trib%nals $ave s&o+en ,it$ (inalit' t$at t$e !oor to an in.%ir' into $is criminal civil or a!ministrative liabilit' ma' be sai! to $ave o&ene! or close!. EFlores ;com&lainant< resorte! to a!ministrative &rosec%tion ;or instit%tion o( criminal actions< as a s%bstit%te (or or s%&&lement to t$e s&eci(ic mo!es o( a&&eals or revie, &rovi!e! b' la, (rom co%rt 9%!gments or or!ers on t$e t$eor' t$at t$e 7%!ges> or!ers $a! ca%se! $im ]%n!%e in9%r'.> 2$is is im&ermissible as t$is Co%rt $as alrea!' more t$an once r%le!. La, an! logic !ecree t$at ]a!ministrative or criminal reme!ies are neit$er alternative nor c%m%lative to 9%!icial revie, ,$ere s%c$ revie, is available an! m%st ,ait on t$e res%lt t$ereo(. *n!ee! since 9%!ges m%st be (ree to 9%!ge ,it$o%t &ress%re or in(l%ence
1/8

(rom e4ternal (orces or (actors t$e' s$o%l! not be s%b9ect to intimi!ation t$e (ear o( civil criminal or a!ministrative sanctions (or acts t$e' ma' !o an! !is&ositions t$e' ma' ma+e in t$e &er(ormance o( t$eir !%ties an! (%nctionsA an! it is so%n! r%le ,$ic$ m%st be recogniBe! in!e&en!entl' o( stat%te t$at 9%!ges are not generall' liable (or acts !one ,it$in t$e sco&e o( t$eir 9%ris!iction an! in goo! (ait$A an! t$at e4ce&tionall' &rosec%tion o( a 9%!ge can be $a! onl' i( ]t$ere be a (inal !eclaration b' a com&etent co%rt in some a&&ro&riate &rocee!ing o( t$e mani(estl' %n9%st c$aracter o( t$e c$allenge! 9%!gment or or!er an! 4 4 4 also evi!ence o( malice or ba! (ait$ ignorance or ine4c%sable negligence on t$e &art o( t$e 9%!ge in ren!ering sai! 9%!gment or or!er> or %n!er t$e stringent circ%mstances set o%t in #rticle 1/ o( t$e Civil Co!e. *n t$e &resent case ,e notice! (rom t$e recor!s be(ore %s t$at t$e com&lainant !i! not bot$er at all to (ile a motion (or reconsi!eration o( res&on!ent 9%!ge>s !ecision !ismissing t$e criminal case. No reason ,as a!vance! b' com&lainant ,$' $e (aile! to !o so. 2$%s (ollo,ing o%r settle! &rono%ncements cite! above $is instant a!ministrative com&laint is &remat%re. #ccor!ing to com&lainant -obert =ala!a committe! t$e crime o( slig$t &$'sical in9%ries on Febr%ar' 1C 1888. On Febr%ar' 18 1888 com&lainant (ile! $is com&laint ,it$ t$e O((ice o( t$e Baranga' C$airman at =oblacion )an 7%lian 3astern )amar. =%rs%ant to t$e &rovisions o( )ection 015;c< o( 2$e LGC .%ote! earlier s%c$ (iling interr%&te! t$e &rescri&tive &erio! U8V an! starte! to r%n again %&on recei&t b' t$e com&lainant o( t$e Certi(ication to File #ction iss%e! b' t$e =ang+at )ecretar'. Here recor!s (ail to s$o, ,$en com&lainant receive! t$e Baranga' Certi(ication to File #ction. 2$e %n!ate! certi(ication $e s%bmitte! merel' states t$at t$e case ,as set (or $earing be(ore t$e baranga' on Marc$ 1G // an! /8 1888 b%t t$e &arties (aile! to reac$ an amicable settlement. 6$en $e (ile! on Ma' 0 1888 Criminal Case No. /188D88 (or slig$t &$'sical in9%ries ,it$ res&on!entHs co%rt %ntil t$e !ismissal o( t$e case on November 1 1888 $e still (aile! to &resent &roo( o( $is recei&t o( t$e Baranga' Certi(ication to File #ction. Clearl' $e cannot no, (a%lt res&on!ent 9%!ge (or !ismissing t$e case on t$e gro%n! o( &rescri&tion. ALA v. Letron o;Monte3o Facts: 2$e =resi!ent o( t$e =$ili&&ines !eclare! December 0 188/ a "s&ecial !a'" (or t$e $ol!ing o( election (or )angg%niang Mabataan ;)M< t$ro%g$o%t t$e nation. 3m&lo'ees &%rs%ant to t$eir CB# s%bse.%entl' (ile! claims (or t$e &a'ment to t$em o( $oli!a' &a' (or t$at !a'. =rivate res&on!ent $o,ever re(%se! t$eir claims on t$e gro%n! t$at December 0 188/ ,as not a reg%lar $oli!a' ,it$in t$e contem&lation o( t$e CB#. *ss%e: 6ON t$e )angg%niang Mabataan 3lection Da' consi!ere! a reg%lar $oli!a' (or &%r&ose o( t$e CB#. 6e $ol! t$at it is an! t$at in !en'ing &etitionerHs claim res&on!ent Kol%ntar' #rbitrator !enie! members o( &etitioner %nion s%bstantial 9%stice as a res%lt o( $er erroneo%s inter&retation o( t$e CB# t$ereb' 9%sti('ing 9%!icial revie,. First. 2$e )angg%niang Mabataan ;)M< is &art o( t$e local government str%ct%re. 2$e LGC ;-e&. #ct. No. 71G5< creates in ever' baranga' a )angg%niang Mabataan com&ose! o( a c$airman seven ;7< members a secretar' an! a treas%rer. 1 2$e c$airman an! t$e seven members are electe! b' t$e Mati&%nan ng Mabataan ,$ic$ is com&ose! o( citiBens o( t$e =$ili&&ines resi!ing in t$e baranga' (or at least si4 ;G< mont$s ,$o are bet,een t$e ages o( 1C an! /1 an! ,$o are registere! as members. 2$e c$airman o( t$e )M is an e4 o((icio member o( t$e )angg%niang Barangga' ,it$ t$e same &o,ers !%ties (%nctions an! &rivileges as t$e reg%lar members o( t$e )angg%niang Baranga'. C 2$e =resi!ent o( t$e =e!eras'on ng mga )angg%niang Mabataan ,$ic$ is im&ose! o( t$e )M c$airmen o( t$e sangg%niang +abataan o( t$e baranga's in t$e &rovince cit' or m%nici&alit' is an e4 o((icio member o( t$e )angg%niang =anlala,igan )angg%niang =anl%ngso! an! )angg%niang Ba'an. Hence as t$e )olicitor General &oints o%t t$e election (or members o( t$e )M ma' &ro&erl' be consi!ere! a "local election" ,it$in t$e meaning o( #rt. K** sec 1 o( t$e CB# an! t$e !a' on ,$ic$ it is $el! to be a $oli!a' t$ereb' entitling &etitioners members at t$e #M) Farming Cor&. to t$e &a'ment o( $oli!a' on s%c$ !a'.
1/8
Mabelle O. Nebres | Local Governments Case Digests )econ!. 2$e Kol%ntar' #rbitrator $el! $o,ever t$at t$e
election (or members o( t$e )M cannot be consi!ere! a local election as t$e election (or Governors Kice Governors Ma'ors an! Kice Ma'ors an! t$e vario%s local legislative assemblies ;sangg%nians< beca%se t$e )M election is &artici&ate! in onl' b' t$e 'o%t$ ,$o are bet,een t$e ages o( 1C an! /1 an! (or t$is reason t$e !a' is not a non,or+ing $oli!a'. 2o begin ,it$ it is not tr%e t$at December 0 188/ ,as not a non,or+ing $oli!a'. *t ,as a non,or+ing $oli!a' an! t$is ,as anno%nce! in t$e me!ia. 7 *n =roclamation No. 118 !ate! December / 188/ =resi!ent -amos !eclare! t$e !a' as "a s&ecial !a' t$ro%g$ t$e co%ntr' on t$e occasion o( t$e )angg%niang Mabataan 3lections" an! en9oine! all "local government %nits t$ro%g$ t$eir res&ective C$ie( Local 34ec%tives UtoV e4ten! all &ossible assistance an! s%&&ort to ens%re t$e smoot$ con!%ct o( t$e general elections." # "s&ecial !a'" is a "s&ecial !a'" as &rovi!e! b' t$e #!ministrative Co!e o( 1887. 8 On t$e ot$er $an! t$e term "general elections" means in t$e conte4t o( )M elections t$e reg%lar elections (or members o( t$e )M as !isting%is$e! (rom t$e s&ecial elections (or s%c$ o((icers. 8 Moreover t$e (act t$at onl' t$ose bet,een 1C an! /1 ta+e &art in t$e election (or members o( t$e )M !oes not ma+e s%c$ election an' less a reg%lar local election. 2$e Constit%tion &rovi!es (or e4am&le (or t$e sectoral re&resentatives in t$e Ho%se o( -e&resentatives o( among ot$ers ,omen an! 'o%t$. 15 Onl' voters belonging to t$e relevant sectors can ta+e &art in t$e election o( t$eir re&resentatives. :et it cannot be !enie! t$at s%c$ election is a reg%lar national election an! t$e !a' set (or its $ol!ing a $oli!a'. 2$ir!. *n!ee! t$e CB# &rovision in .%estion merel' reiterates t$e &rovision on &ai! $oli!a's. 6$et$er in t$e conte4t o( t$e CB# or t$e Labor Co!e December 0 188/ ,as a $oli!a' (or ,$ic$ $oli!a' &a' s$o%l! be &ai! b' res&on!ent em&lo'er. Merca o v. Boar o! %lection (upervisors 2ellers ;B32< acting as t$e Boar! o( Canvassers on t$e basis o( its tall' ,$ic$ s$o,e! Merca!o ,inning b' one vote over $is rival &rivate res&on!ent Crisanto =. =angilinan. Merca!oH s victor' ,as $o,ever s$ortDlive!. *mme!iatel' a(ter Merca!oHs &roclamation as t$e ,inner b' t$e B32 =angilinan (ile! a (ormal &rotest .%estioning t$e res%lts o( t$e election. He allege! t$at t$e B32 C$airman !rin+ing gin an! Co+e !%ring t$e co%nting $a! invali!ate! some votes ,it$o%t cons%lting t$e ot$er boar! members. 2$e B3) or!ere! .t$e reo&ening o( t$e ballot bo4 an! t$e reco%nt o( t$e votes (or )M C$airman. 2$e reco%nt reverse! t$e earlier tall' to C1 to 08 in (avor o( =angilinan ,$o ,as t$ere%&on &roclaime! t$e !%l' electe! )M C$airman b' t$e B3) ,$ic$ iss%e! (or t$at &%r&ose its o,n Certi(icate o( Canvass an! =roclamation. Merca!o t$en (ile! ,it$ t$e -egional 2rial Co%rt ;-2C< o( Batangas Cit' a &etition (or certiorari an! man!am%s &ra'ing (or t$e ann%lment o( =angilinanHs &roclamation b' t$e B3) an! (or t$e iss%ance o( an or!er to com&el t$e De&artment o( *nterior an! Local Government ;D*LG< to recogniBe $im as t$e !%l' electe! )M C$airman o( Baranga' Mabalor an! to allo, $im to ta+e $is oat$ o( o((ice an! !isc$arge $is !%ties as s%c$. *n $is &etition !oc+ete! as Civil Case No. 1CGC Merca!o assaile! t$e 9%ris!iction o( t$e B3) to act on t$e &rotest (ile! b' =angilinan as t$e gro%n! cite! t$erein ,as allege!l' in t$e nat%re o( an election &rotest &ro&erl' cogniBable b' t$e Metro&olitan or M%nici&al 2rial Co%rt in accor!ance ,it$ )ection /C/ o( t$e Omnib%s 3lection Co!e. He (%rt$er claime! t$at ass%ming t$at t$e B3) $as 9%ris!iction over t$e &rotest t$e gro%n!s raise! t$erein ,ere !eeme! ,aive! b' =angilinanHs (ail%re to invo+e t$em at t$e level o( t$e B32 an! t$at t$e B3) acte! ,it$ grave ab%se o( !iscretion amo%nting to lac+ or e4cess o( 9%ris!iction in !en'ing t$e &etitioner o( !%e &rocess ,$en it or!ere! t$e reo&ening o( t$e ballot bo4 an! t$e reco%nting o( t$e votes ,it$o%t a((or!ing $im t$e o&&ort%nit' to be $ear!. *n its Or!er !ate! 11 7an%ar' 1881 t$e -2C !ismisse! t$e &etition (or lac+ o( 9%ris!iction 2$e trial co%rt state! t$at it ,as not a,are o( an' la, b' ,$ic$ it co%l! act on t$e matters raise! in Merca!oHs &etition since -esol%tion No. /088 o( t$e COM3L3C !i! not vest in t$e -2C 9%ris!iction over controversies a((ecting )angg%niang Mabataan electionsA constit%ting instea! t$e B3) ,$ic$ is %n!er COM3L3C 9%ris!iction as t$e (inal arbiter o( all election controversies ,it$in its level. Merca!o move! (or a reconsi!eration o( t$e !ismissal or!er. He arg%e! t$at t$e -2C ,as com&etent to act on $is &etition beca%se ;a< one mo!e o( see+ing 9%!icial revie,
Facts: 7ose M. Merca!o ,as &roclaime! ,inner in t$e 0 December 188/ election (or c$airman o( t$e )M o( Baranga' Mabalor *baan Batangas. 2$e &roclamation ,as ma!e b' t$e Boar! o( 3lection
115

is t$ro%g$ t$e ,rit o( certiorari ,$ic$ ma' be iss%e! b' t$e -2C %n!er B.=. Blg. 1/8A;b< %n!er its -esol%tions Nos. /088 an! /C/5 t$e COM3L3C ,as to &rovi!e onl' tec$nical assistance in t$e con!%ct o( t$e )M election an! t$ere(ore co%l! not grant an' relie( (rom t$e action o( t$e B3)A moreover %n!er sai! -esol%tion No. /088 no a&&eal to a $ig$er a!ministrative level ,as$ allo,e! (rom t$e action o( t$e B3) an! ;c< t$e &rinci&le o( e4$a%stion o( a!ministrative reme!ies !i! not a&&l' to t$e case at bar t$e 9%ris!ictional an! !%e &rocess iss%es raise! t$erein being legal in nat%re. @nconvince! t$e -2C in its Or!er !ate! / Marc$ 1881 !enie! t$e motion (or reconsi!eration (or lac+ o( merit. *t r%le! t$at t$e reo&ening o( t$e ballot bo4 (or Baranga' Mabalor an! t$e reco%nting o( t$e votes cast t$erein ,ere &er(ectl' ,it$in t$e ambit o( t$e B3)Hs a%t$orit' an! t$at Merca!o s$o%l! $ave gone to t$e D*LG ,$ic$ $as !irect control an! s%&ervision o( t$e )M elections. *ss%e: 6ON t$e B3) ma' ta+e cogniBance o( =angilinan>s &rotest )M $istor': t$e )M ,as initiall' organiBe! b' =.D. No. G80 ;1C #&ril 187C< as t$e Mabataang Baranga' ;MB< a 'o%t$ organiBation com&ose! o( all baranga' resi!ents ,$o ,ere less t$an 18 'ears o( age ,$ic$ aims to &rovi!e its members ,it$ t$e o&&ort%nit' to e4&ress t$eir vie,s an! o&inions on iss%es o( transcen!ental im&ortance. *ts a((airs ,ere a!ministere! b' a baranga' 'o%t$ c$airman toget$er ,it$ si4 baranga' 'o%t$ lea!ers ,$o s$o%l! at least be 1C 'ears o( age or over b%t less t$an 18 2$e t$en )ecretar' o( Local Government an! Comm%nit' Develo&ment ,as a%t$oriBe! to &rom%lgate t$e im&lementing r%les an! reg%lations. =%rs%ant to =.D. No. 1181 ;1 )e&tember 1877< t$e =ambansang Mati&%nan ng Mabataang Baranga' ng =ili&inas ,as constit%te! as "a bo!' cor&orate" ,it$ "t$e &o,ers an! attrib%tes o( a cor&oration" an! &lace! !irectl' %n!er t$e O((ice o( t$e =resi!ent. *ts a((airs ,ere to be a!ministere! b' t$e 34ec%tive Committee ,$ic$ ,as em&o,ere! to &rom%lgate r%les an! reg%lations governing t$e MB. 2$is 'o%t$ organiBation ,as recogniBe! in B.=. Blg. 117 ;2$e LGC< / ,$ic$ raise! t$e ma4im%m age re.%irement o( t$e members (rom 18 to /1. @n!er -.#. No. 71G5 ;2$e LGC< t$e Mabataang Baranga' ,as c$ange! to t$e )angg%niang Mabataan. 1 *t remains as a 'o%t$ organiBation in ever' baranga' com&ose! o( a c$airman an! seven members to be electe! b' t$e +ati&%nan ng +abataan an! t$e secretar' an! t$e treas%rer to be a&&ointe! b' t$e )M c$airman ,it$ t$e conc%rrence o( t$e )M. 0 2$e +ati&%nan ng +abataan is com&ose! o( all citiBens o( t$e =$ili&&ines act%all' resi!ing in t$e baranga' (or at least si4 mont$s ,$o are 1C b%t not more t$an /1 an! ,$o are !%l' registere! in t$e list o( t$e )M or in t$e o((icial baranga' list in t$e c%sto!' o( t$e baranga' secretar'. 2$e c$airman %&on ass%m&tion o( o((ice s$all a%tomaticall' become an e4Do((icio member o( t$e sangg%niang baranga' @n!er s%b&aragra&$ ;C< &aragra&$ ;e< #rticle /51 -%le JJK** o( t$e -%les an! -eg%lations *m&lementing t$e LGC 7 t$e con!%ct an! a!ministration o( t$e elections (or sangg%niang +abataan members s$all be governe! b' t$e r%les &rom%lgate! b' t$e COM3L3C.=%rs%ant to s%c$ a%t$orit' an! (or &%r&oses o( t$e )M election a%t$oriBe! %n!er )ection C1/ o( -.#. No. 71G5 t$e COM3L3C &rom%lgate! -esol%tion No. /088 ,$ic$ closel' (ollo,e! t$e &attern set in t$e Constit%tion o( t$e Mabataang Baranga' &rovi!ing (or a Boar! o( 3lection )%&ervisors an! Boar! o( 3lection 2ellers ,it$ t$e (ormer $aving !irect general s%&ervision in t$e con!%ct o( s%c$ election an! as t$e (inal arbiter o( all election &rotests. #rticle K o( -esol%tion No. /088 e4&ressl' &rovi!es: 2$ere s$all be create! aboar! o( election s%&ervisors ;B3)< in ever' cit' or m%nici&alit' com&ose! o( t$e (ollo,ing: a< cit'?m%nici&al local government o&erations o((icer as c$airmanA b< cit'?m%nici&al election o((icer as memberA an! c< cit'?m%nici&al secretar' as member. 2$e boar! s$all $ave !irect general s%&ervision in t$e con!%ct o( elections (or sangg%niang +abataan in t$e baranga' an! s$all act as (inal arbiter in t$e resol%tion o( all election &rotests. No &reD &roclamation cases s$all be allo,e! on matters relating to t$e election o( sangg%niang +abataan c$airman an! members. 2$e &etitioner conten!s t$at COM3L3C -esol%tion No. /088 is illegal an! %nconstit%tional beca%se it ma+es t$e B3) t$e (inal arbiter o( election contests involving t$e )M in contravention o( )ection /C/ o( t$e Omnib%s 3lection Co!e ,$ic$ vests in t$e &ro&er metro&olitan or m%nici&al trial co%rt original 9%ris!iction over s%c$ contests an! on a more (%n!amental gro%n! in contravention o( )ection / #rticle *JDC o( t$e Constit%tion ,$ic$ lo!ges on. s%c$ co%rts
111

e4cl%sive original 9%ris!iction over contests involving elective baranga' o((icials. 2$is contention is ,it$o%t merit (or it ass%mes t$at t$e )M election is an election involving elective baranga' o((icials ,it$in t$e &%rvie, o( t$e a(oresai! stat%tor' an! constit%tional &rovisions. )ection /C/ o( t$e Omnib%s 3lection Co!e an! t$at &ortion o( &aragra&$ ;/< )ection / #rticle *JDC o( t$e Constit%tion on t$e COM3L3CHs e4cl%sive a&&ellate 9%ris!iction over contests involving elective baranga' o((icials re(er to t$e elective baranga' o((icials %n!er t$e &ertinent la,s in (orce at t$e time t$e Omnib%s 3lection Co!e ,as enacte! an! %&on t$e rati(ication o( t$e Constit%tion. 2$at la, ,as B.=. Blg. 117 ot$er,ise +no,n as t$e LGC an! t$e elective baranga' o((icials re(erre! to ,ere t$e &%nong baranga' an! t$e si4 sangg%niang ba'an members. 8 2$e' ,ere to be electe! b' t$ose .%ali(ie! to e4ercise t$e rig$t o( s%((rage. 15 2$e' are also t$e same o((icers re(erre! to b' t$e &rovisions o( t$e Omnib%s 3lection Co!e o( t$e =$ili&&ines on election o( baranga' o((icials. Metro&olitan an! m%nici&al trial co%rts $a! e4cl%sive original 2$e 9%ris!iction over contests relating to t$eir election . 2$e !ecisions o( t$ese co%rts ,ere a&&ealable to t$e -egional 2rial Co%rts. 2$e Co%rt recogniBes t$e conse.%ences o( t$e .%asiD9%!icial acts &er(orme! b' t$e B3) &%rs%ant to )ection /0 o( COM3L3C -esol%tion No. /088 %n!er t$e o&erative (act !octrineA t$%s ,e $ol! t$at t$e -egional 2rial Co%rt is com&etent to revie, t$e !ecision o( t$e B3) in election controversies ,it$in its level. #s correctl' state! b' t$e &etitioner it is a basic &rinci&le in a!ministrative la, t$at t$e absence o( a &rovision (or t$e revie, o( an a!ministrative action !oes not &recl%!e reco%rse to t$e co%rts. *t is generall' %n!erstoo! t$at as to a!ministrative agencies e4ercising .%asiD9%!icial or legislative &o,er t$ere is an %n!erl'ing &o,er in t$e co%rts to scr%tiniBe t$e acts o( s%c$ agencies on .%estions o( la, an! 9%ris!iction even t$o%g$ no rig$t o( revie, is given b' stat%te. 2$e &%r&ose o( 9%!icial revie, is to +ee& t$e a!ministrative agenc' ,it$in its 9%ris!iction an! &rotect s%bstantial rig$ts o( &arties a((ecte! b' its !ecisions. it is &art o( t$e s'stem o( c$ec+s an! balances ,$ic$ restricts t$e se&aration o( &o,ers an! (orestalls arbitrar' an! %n9%st a!9%!ications. Garvi a v. (ales Facts: =etitioner a&&lie! (or members$i& in t$e Mati&%nan ng Mabataan b%t ,as !enie! s%c$ as s$e ,as alrea!' /1 'ears an! 15 mont$s ol!. )$e (ile! a "=etition (or *ncl%sion as -egistere! Mabataang Member an! Koter" ,it$ t$e M%nici&al Circ%it 2rial Co%rt Bang%iD=ag%!&%!D#!amsDDamalneg *locos Norte. 2$e co%rt (o%n! $er .%ali(ie!. 2$e Boar! o( 3lection 2ellers a&&eale! b%t t$e -2C 9%!ge in$ibite! $imsel( b' reason o( $is close relation ,it$ $er. =etitioner (ile! $er certi(icate o( can!i!ac' (or t$e &osition o( C$airman )angg%niang Mabataan. 3lection O((icer Dionisio F. -ios &er a!vice o( =rovincial 3lection )%&ervisor Noli =i&o !isa&&rove! &etitionerHs certi(icate o( can!i!ac' again !%e to $er age. =etitioner $o,ever a&&eale! to COM3L3C -egional Director Filemon #. #s&erin ,$o set asi!e t$e or!er o( res&on!ents an! allo,e! &etitioner to r%n. -ios iss%e! a memoran!%m to &etitioner in(orming $er o( $er ineligibilit' an! giving $er /0 $o%rs to e4&lain ,$' $er certi(icate o( can!i!ac' s$o%l! not be !isa&&rove!. 3arlier an! ,it$o%t t$e +no,le!ge o( t$e COM3L3C o((icials &rivate res&on!ent Florencio G. )ales 7r. a rival can!i!ate (or C$airman o( t$e )angg%niang Mabataan (ile! ,it$ t$e COM3L3C en banc a "=etition o( Denial an!?or Cancellation o( Certi(icate o( Can!i!ac'" against &etitioner Garvi!a (or (alsel' re&resenting $er age .%ali(ication in $er certi(icate o( can!i!ac'. 2$at same !a' -ios iss%e! t$e memoran!%m to &etitioner t$e COM3L3C en banc iss%e! an or!er !irecting t$e Boar! o( 3lection 2ellers an! Boar! o( Canvassers o( Baranga' )an LorenBo to s%s&en! t$e &roclamation o( &etitioner in t$e event s$e ,on in t$e election. =etitioner ,on. *n accor!ance ,it$ t$e Ma' / 188G or!er o( t$e COM3L3C en banc t$e Boar! o( 3lection 2ellers !i! not &roclaim &etitioner as t$e ,inner. Hence t$e instant &etition (or certiorari ,as (ile! on Ma' /7 188G. On 7%ne / 188G $o,ever t$e Boar! o( 3lection 2ellers &roclaime! &etitioner t$e ,inner (or t$e &osition o( )M c$airman Baranga' )an LorenBo Bang%i *locos Norte. 2$e &roclamation ,as ",it$o%t &re9%!ice to an' (%rt$er action b' t$e Commission on 3lections or an' ot$er intereste! &art'." On 7%l' C 188G &etitioner ran in t$e =amba'ang =e!eras'on ng mga )angg%niang Mabataan (or t$e m%nici&alit' o( Bang%i *locos Norte. )$e ,on as #%!itor an! ,as &roclaime! one o( t$e electe! o((icials o( t$e =e!eras'on.
11/

*ss%e: 6ON t$e cancellation o( $er certi(icate o( can!i!ac' on t$e gro%n! t$at s$e $as e4cee!e! t$e age re.%irement to r%n as an elective o((icial o( t$e )M is vali!. :3). 2$e Mati&%nan ng Mabataan ,as originall' create! b' =D G80 in 187C as t$e Mabataang Baranga' a baranga' 'o%t$ organiBation com&ose! o( all resi!ents o( t$e baranga' ,$o ,ere at least 1C 'ears b%t less t$an 18 'ears o( age. 2$e Mabataang Baranga' so%g$t to &rovi!e its members a me!i%m to e4&ress t$eir vie,s an! o&inions an! &artici&ate in iss%es o( transcen!ental im&ortance. *ts a((airs ,ere a!ministere! b' a baranga' 'o%t$ c$airman toget$er ,it$ si4 baranga' 'o%t$ lea!ers ,$o ,ere act%al resi!ents o( t$e baranga' an! ,ere at least 1C 'ears b%t less t$an 18 'ears o( age. *n 1881 Batas =ambansa Blg. 117 t$en t$e LGC raise! t$e ma4im%m age o( t$e Mabataang Baranga' members (rom "less t$an 18 'ears o( age" to "not more t$an /1 'ears o( age." 2$e LGC c$ange! t$e Mabataang Baranga' into t$e Mati&%nan ng Mabataan. *t $o,ever retaine! t$e age limit o( t$e members lai! !o,n in B.=. 117 at 1C b%t not more t$an /1 'ears ol!. 2$e a((airs o( t$e Mati&%nan ng Mabataan are a!ministere! b' t$e )angg%niang Mabataan ;)M< com&ose! o( a c$airman an! seven ;7< members ,$o are electe! b' t$e Mati&%nan ng Mabataan. Members$i& in t$e Mati&%nan ng Mabataan is s%b9ect to s&eci(ic .%ali(ications lai! !o,n b' t$e LGC: ;a< a Fili&ino citiBenA ;b< an act%al resi!ent o( t$e baranga' (or at least si4 mont$sA ;c< 1C b%t not more t$an /1 'ears o( ageA an! ;!< !%l' registere! in t$e list o( t$e )angg%niang Mabataan or in t$e o((icial baranga' list. )ection 0/8 o( t$e Co!e re.%ires t$at an elective o((icial o( t$e )angg%niang Mabataan m%st be: ;a< a Fili&ino citiBenA ;b< a .%ali(ie! voter in t$e Mati&%nan ng MabataanA ;c< a resi!ent o( t$e baranga' at least one ;1< 'ear imme!iatel' &rece!ing t$e electionA ;!< at least 1C 'ears b%t not more t$an /1 'ears o( age on t$e !a' o( $is electionA ;e< able to rea! an! ,riteA an! ;(< m%st not $ave been convicte! o( an' crime involving moral t%r&it%!e. # member o( t$e Mati&%nan ng Mabataan ma' be a .%ali(ie! voter in t$e Ma' G 188G )M elections i( $e is: ;a< a Fili&ino citiBenA ;b< 1C b%t not more t$an /1 'ears o( age on election !a' i.e. t$e voter m%st be born bet,een Ma' G 187C an! Ma' G 1881 incl%siveA an! ;c< a resi!ent o( t$e =$ili&&ines (or at least one ;1< 'ear an! an act%al resi!ent o( t$e baranga' at least si4 ;G< mont$s imme!iatel' &rece!ing t$e elections. # can!i!ate (or t$e )M m%st: ;a< &ossess t$e (oregoing .%ali(ications o( a voterA ;b< be a resi!ent in t$e baranga' at least one ;1< 'ear imme!iatel' &rece!ing t$e electionsA an! ;c< able to rea! an! ,rite. 34ce&t (or t$e .%estion o( age &etitioner $as all t$e .%ali(ications o( a member an! voter in t$e Mati&%nan ng Mabataan an! a can!i!ate (or t$e )angg%niang Mabataan. =etitionerHs age is a!mitte!l' be'on! t$e limit set in )ection 1 UbV o( COM3L3C -esol%tion No. /8/0. =etitioner $o,ever arg%es t$at )ection 1 UbV o( -esol%tion No. /8/0 is %nla,(%l %ltra vires an! be'on! t$e sco&e o( )ections 0/0 an! 0/8 o( t$e LGC. )$e conten!s t$at t$e Co!e itsel( !oes not &rovi!e t$at t$e voter m%st be e4actl' /1 'ears o( age on election !a'. )$e %rges t$at so long as s$e !i! not t%rn t,ent'Dt,o ;//< 'ears ol! s$e ,as still t,ent'Done 'ears o( age on election !a' an! t$ere(ore .%ali(ie! as a member an! voter in t$e Mati&%nan ng Mabataan an! as can!i!ate (or t$e )M elections. # closer loo+ at t$e LGC ,ill reveal a !istinction bet,een t$e ma4im%m age o( a member in t$e Mati&%nan ng Mabataan an! t$e ma4im%m age o( an elective )M o((icial. )ection 0/0 o( t$e Co!e sets a memberHs ma4im%m age at /1 'ears onl'. 2$ere is no (%rt$er &rovision as to ,$en t$e member s$all $ave t%rne! /1 'ears o( age. On t$e ot$er $an! )ection 0/8 &rovi!es t$at t$e ma4im%m age o( an elective )M o((icial is /1 'ears ol! "on t$e !a' o( $is election." 2$e a!!ition o( t$e &$rase "on t$e !a' o( $is election" is an a!!itional .%ali(ication. 2$e member ma' be more t$an /1 'ears o( age on election !a' or on t$e !a' $e registers as member o( t$e Mati&%nan ng Mabataan. 2$e elective o((icial $o,ever m%st not be more t$an /1 'ears ol! on t$e !a' o( election. 2$e !istinction is %n!erstan!able consi!ering t$at t$e Co!e itsel( &rovi!es more .%ali(ications (or an elective )M o((icial t$an (or a member o( t$e Mati&%nan ng Mabataan. Dissimil%m !issimilis est ratio. 2$e co%rts ma' !isting%is$ ,$en t$ere are (acts an! circ%mstances s$o,ing t$at t$e legislat%re inten!e! a !istinction or .%ali(ication. 2$e .%ali(ication t$at a voter in t$e )M elections m%st not be more t$an /1 'ears o( age on t$e !a' o( t$e election is not
111

&rovi!e! in )ection 0/0 o( t$e LGC. *n (act t$e term ".%ali(ie! voter" a&&ears onl' in COM3L3C -esol%tion No. /8/0. )ince a ".%ali(ie! voter" is not necessaril' an elective o((icial t$en it ma' be ass%me! t$at a ".%ali(ie! voter" is a "member o( t$e Mati&%nan ng Mabataan." )ection 0/0 o( t$e Co!e !oes not &rovi!e t$at t$e ma4im%m age o( a member o( t$e Mati&%nan ng Mabataan is !etermine! on t$e !a' o( t$e election. )ection 1 UbV o( COM3L3C -esol%tion No. /8/0 is t$ere(ore %ltra vires inso(ar as it sets t$e age limit o( a voter (or t$e )M elections at e4actl' /1 'ears on t$e !a' o( t$e election. 2$e &rovision t$at an elective o((icial o( t$e )M s$o%l! not be more t$an /1 'ears o( age on t$e !a' o( $is election is ver' clear. 2$e LGC s&ea+s o( 'ears not mont$s nor !a's. 6$en t$e la, s&ea+s o( 'ears it is %n!erstoo! t$at 'ears are o( 1GC !a's eac$. One born on t$e (irst !a' o( t$e 'ear is conse.%entl' !eeme! to be one 'ear ol! on t$e 1GCt$ !a' a(ter $is birt$ DD t$e last !a' o( t$e 'ear. *n com&%ting 'ears t$e (irst 'ear is reac$e! a(ter com&leting t$e (irst 1GC !a's. #(ter t$e (irst 1GCt$ !a' t$e (irst !a' o( t$e secon! 1GCD!a' c'cle begins. On t$e 1GCt$ !a' o( t$e secon! c'cle t$e &erson t%rns t,o 'ears ol!. 2$is c'cle goes on an! on in a li(etime. # &erson t%rns /1 'ears ol! on t$e 1GCt$ !a' o( $is /1st 1GCD!a' c'cle. 2$is means on $is /1st birt$!a' $e $as com&lete! t$e entire s&an o( /1 1GCD!a' c'cles. #(ter t$is birt$!a' t$e 1GCD!a' c'cle (or $is //n! 'ear begins. 2$e !a' a(ter t$e 1GCt$ !a' is t$e (irst !a' o( t$e ne4t 1GCD!a' c'cle an! $e t%rns // 'ears ol! on t$e 1GCt$ !a'. 2$e &$rase "not more t$an /1 'ears o( age" means not over /1 'ears not be'on! /1 'ears. *t means /1 1GCD!a' c'cles. *t !oes not mean /1 'ears an! one or some !a's or a (raction o( a 'ear beca%se t$at ,o%l! be more t$an /1 1GCD !a' c'cles. "Not more t$an /1 'ears ol!" is not e.%ivalent to "less t$an // 'ears ol! " contrar' to &etitionerHs claims. 2$e la, !oes not state t$at t$e can!i!ate be less t$an // 'ears on election !a'. *n =.D. G80 t$e la, t$at create! t$e Mabataang Baranga' t$e age .%ali(ication o( a baranga' 'o%t$ o((icial ,as e4&ressl' state! as "at least (i(teen 'ears o( age or over b%t less t$an eig$teen." 2$is &rovision clearl' states t$at t$e 'o%t$ o((icial m%st be at least 1C 'ears ol! an! ma' be 17 'ears an! a (raction o( a 'ear b%t s$o%l! not reac$ t$e age o( eig$teen 'ears. 6$en t$e LGC increase! t$e age limit o( members o( t$e 'o%t$ organiBation to /1 'ears it !i! not reenact t$e &rovision in s%c$ a ,a' as to ma+e t$e 'o%t$ "at least 1C b%t less t$an // 'ears ol!." *( t$e intention o( t$e Co!eHs (ramers ,as to incl%!e citiBens less t$an // 'ears ol! t$e' s$o%l! $ave state! so e4&ressl' instea! o( leaving t$e matter o&en to con(%sion an! !o%bt. 2$e general r%le is t$at an elective o((icial o( t$e )angg%niang Mabataan m%st not be more t$an /1 'ears o( age on t$e !a' o( $is election. 2$e onl' e4ce&tion is ,$en t$e o((icial reac$es t$e age o( /1 'ears !%ring $is inc%mbenc'. )ection 0/1 UbV o( t$e Co!e allo,s $im to serve t$e remaining &ortion o( t$e term (or ,$ic$ $e ,as electe!. #ccor!ing to )enator =imentel t$e 'o%t$ lea!er m%st $ave "been electe! &rior to $is /1st birt$!a'." Conversel' t$e )M o((icial m%st not $ave t%rne! /1 'ears ol! be(ore $is election. -ea!ing )ection 0/1 UbV toget$er ,it$ )ection 0/8 o( t$e Co!e t$e latest !ate at ,$ic$ an )M elective o((icial t%rns /1 'ears ol! is on t$e !a' o( $is election. 2$e ma4im%m age o( a 'o%t$ o((icial m%st t$ere(ore be e4actl' /1 'ears on election !a'. )ection 1 UbV in relation to )ection G UaV o( COM3L3C -esol%tion No. /8/0 is not %ltra vires inso(ar as it (i4es t$e ma4im%m age o( an elective )M o((icial on t$e !a' o( $is election. *n t$e case at bar &etitioner ,as born on 7%ne 11 1870. On Marc$ 1G 188G t$e !a' s$e registere! as voter (or t$e Ma' G 188G )M elections &etitioner ,as t,ent'Done ;/1< 'ears an! nine ;8< mont$s ol!. On t$e !a' o( t$e elections s$e ,as /1 'ears 11 mont$s an! C !a's ol!. 6$en s$e ass%me! o((ice on 7%ne 1 188G s$e ,as /1 'ears 11 mont$s an! /5 !a's ol! an! ,as merel' ten ;15< !a's a,a' (rom t%rning // 'ears ol!. =etitioner ma' $ave .%ali(ie! as a member o( t$e Mati&%nan ng Mabataan b%t !e(initel' &etitioner ,as over t$e age limit (or elective )M o((icials set b' )ection 0/8 o( t$e LGC an! )ections 1 UbV an! G o( Comelec -esol%tion No. /8/0. )$e ,as ineligible to r%n as can!i!ate (or t$e Ma' G 188G )angg%niang Mabataan elections. 2$e re.%irement t$at a can!i!ate &ossess t$e age .%ali(ication is (o%n!e! on &%blic &olic' an! i( $e lac+s t$e age on t$e !a' o( t$e election $e can be !eclare! ineligible.
110

*n t$e same vein i( t$e can!i!ate is over t$e ma4im%m age limit on t$e !a' o( t$e election $e is ineligible. 2$e (act t$at t$e can!i!ate ,as electe! ,ill not ma+e t$e age re.%irement !irector' nor ,ill it vali!ate $is election. 2$e ,ill o( t$e &eo&le as e4&resse! t$ro%g$ t$e ballot cannot c%re t$e vice o( ineligibilit'. 2$e ineligibilit' o( &etitioner !oes not entitle &rivate res&on!ent t$e can!i!ate ,$o obtaine! t$e $ig$est n%mber o( votes in t$e Ma' G 188G elections to be !eclare! electe!. # !e(eate! can!i!ate cannot be !eeme! electe! to t$e o((ice. Moreover !es&ite $is claims &rivate res&on!ent $as (aile! to &rove t$at t$e electorate t$emselves act%all' +ne, o( &etitionerHs ineligibilit' an! t$at t$e' malicio%sl' vote! (or $er ,it$ t$e intention o( misa&&l'ing t$eir (ranc$ises an! t$ro,ing a,a' t$eir votes (or t$e bene(it o( $er rival can!i!ate. Neit$er can t$is Co%rt or!er t$at &%rs%ant to )ection 01C o( t$e LGC &etitioner s$o%l! be s%ccee!e! b' t$e )angg%niang Mabataan member ,$o obtaine! t$e ne4t $ig$est n%mber o( votes in t$e Ma' G 188G elections. )ection 01C a&&lies ,$en a )angg%niang Mabataan C$airman "re(%ses to ass%me o((ice (ails to .%ali(' is convicte! o( a (elon' vol%ntaril' resigns !ies is &ermanentl' inca&acitate! is remove! (rom o((ice or $as been absent ,it$o%t leave (or more t$an t$ree ;1< consec%tive mont$s." 2$e .%estion o( t$e age .%ali(ication is a .%estion o( eligibilit'. Being "eligible" means being "legall' .%ali(ie!A ca&able o( being legall' c$osen." *neligibilit' on t$e ot$er $an! re(ers to t$e lac+ o( t$e .%ali(ications &rescribe! in t$e Constit%tion or t$e stat%tes (or $ol!ing &%blic o((ice. *neligibilit' is not one o( t$e gro%n!s en%merate! in )ection 01C (or s%ccession o( t$e )M C$airman. 2o avoi! a $iat%s in t$e o((ice o( )M C$airman t$e Co%rt !eems it necessar' to or!er t$at t$e vacanc' be (ille! b' t$e )M member c$osen b' t$e inc%mbent )M members o( Baranga' )an LorenBo Bang%i *locos Norte b' sim&le ma9orit' (rom among t$emselves. 2$e member c$osen s$all ass%me t$e o((ice o( )M C$airman (or t$e %ne4&ire! &ortion o( t$e term an! s$all !isc$arge t$e &o,ers an! !%ties an! en9o' t$e rig$ts an! &rivileges a&&%rtenant to sai! o((ice. Facts: On Febr%ar' 18 /55/ &etitioner #ntoniette K.C. Montesclaros sent a letter to t$e Comelec !eman!ing t$at t$e )M elections be $el! as sc$e!%le! on Ma' G /55/. Montesclaros also %rge! t$e Comelec to res&on! to $er letter ,it$in 15 !a's %&on recei&t o( t$e letter ot$er,ise s$e ,ill see+ 9%!icial relie(. On Febr%ar' /5 /55/ #l(re!o L. Beni&a'o t$en Comelec C$airman ,rote i!entical letters to t$e )&ea+er o( t$e Ho%se an! t$e )enate =resi!ent abo%t t$e stat%s o( &en!ing bills on t$e )M an! Baranga' elections. *n $is letters t$e Comelec C$airman intimate! t$at it ,as Eo&erationall' ver' !i((ic%ltF to $ol! bot$ elections sim%ltaneo%sl' in Ma' /55/. *nstea! t$e Comelec C$airman e4&resse! s%&&ort (or t$e bill o( )enator Fran+lin Drilon t$at &ro&ose! to $ol! t$e Baranga' elections in Ma' /55/ an! &ost&one t$e )M elections to November /55/. 2en !a's la&se! ,it$o%t t$e Comelec res&on!ing to t$e letter o( Montesclaros. )%bse.%entl' &etitioners receive! a co&' o( Comelec 3n Banc -esol%tion No. 07G1 !ate! Febr%ar' C /55/ recommen!ing to Congress t$e &ost&onement o( t$e )M elections to November /55/ b%t $ol!ing t$e Baranga' elections in Ma' /55/ as sc$e!%le!. On Marc$ G /55/ t$e )enate an! t$e Ho%se o( -e&resentatives &asse! t$eir res&ective bills &ost&oning t$e )M elections. On Marc$ 11 /55/ t$e Bicameral Con(erence Committee ;EBicameral CommitteeF (or brevit'< o( t$e )enate an! t$e Ho%se came o%t ,it$ a -e&ort recommen!ing a&&roval o( t$e reconcile! bill consoli!ating )enate Bill No. /5C5 U10V an! Ho%se Bill No. 00CG. U1CV 2$e Bicameral Committee>s consoli!ate! bill reset t$e )M an! Baranga' elections to 7%l' 1C /55/ an! lo,ere! t$e members$i& age in t$e )M to at least 1C b%t not more t$an 18 'ears o( age. On Marc$ 11 /55/ &etitioners (ile! t$e instant &etition. On Marc$ 11 /55/ t$e )enate a&&rove! t$e Bicameral Committee>s consoli!ate! bill an! on Marc$ 11 /55/ t$e Ho%se o( -e&resentatives a&&rove! t$e same. 2$e =resi!ent signe! t$e a&&rove! bill into la, on Marc$ 18 /55/. *ss%es: 1. 6ON t$ere e4ists a 9%sticiable controvers'. NO. 2$e Co%rt>s &o,er o( 9%!icial revie, ma' be e4ercise! in constit%tional cases onl' i( all t$e (ollo,ing re.%isites are com&lie! ,it$ namel': ;1< t$e e4istence o( an act%al an! a&&ro&riate case or controvers'A ;/< a &ersonal an! s%bstantial interest o( t$e &art' raising t$e constit%tional .%estionA ;1< t$e e4ercise o( 9%!icial revie, is &lea!e! at t$e
Montesclaros v. COM%L%C
11C

earliest o&&ort%nit'A an! ;0< t$e constit%tional .%estion is t$e lis mota o( t$e case. *n t$e instant case t$ere is no act%al controvers' re.%iring t$e e4ercise o( t$e &o,er o( 9%!icial revie,. 6$ile see+ing to &revent a &ost&onement o( t$e Ma' G /55/ )M elections &etitioners are nevert$eless amenable to a resetting o( t$e )M elections to an' !ate not later t$an 7%l' 1C /55/. -# No. 81G0 $as reset t$e )M elections to 7%l' 1C /55/ a !ate acce&table to &etitioners. 6it$ res&ect to t$e !ate o( t$e )M elections t$ere is t$ere(ore no act%al controvers' re.%iring 9%!icial intervention. =etitioners> &ra'er to &revent Congress (rom enacting into la, a &ro&ose! bill lo,ering t$e members$i& age in t$e )M !oes not &resent an act%al 9%sticiable controvers'. # &ro&ose! bill is not s%b9ect to 9%!icial revie, beca%se it is not a la,. # &ro&ose! bill creates no rig$t an! im&oses no !%t' legall' en(orceable b' t$e Co%rt. # &ro&ose! bill $aving no legal e((ect violates no constit%tional rig$t or !%t'. 2$e Co%rt $as no &o,er to !eclare a &ro&ose! bill constit%tional or %nconstit%tional beca%se t$at ,o%l! be in t$e nat%re o( ren!ering an a!visor' o&inion on a &ro&ose! act o( Congress. 2$e &o,er o( 9%!icial revie, cannot be e4ercise! in vac%o. 2$e secon! &aragra&$ o( )ection 1 #rticle K*** o( t$e Constit%tion states X E7%!icial &o,er incl%!es t$e !%t' o( t$e co%rts o( 9%stice to settle act%al controversies involving rig$ts ,$ic$ are legall' !eman!able an! en(orceable an! to !etermine ,$et$er or not t$ere $as been a grave ab%se o( !iscretion amo%nting to lac+ or e4cess o( 9%ris!iction on t$e &art o( an' branc$ or instr%mentalit' o( t$e Government.F 2$%s t$ere can be no 9%sticiable controvers' involving t$e constit%tionalit' o( a &ro&ose! bill. 2$e Co%rt can e4ercise its &o,er o( 9%!icial revie, onl' a(ter a la, is enacte! not be(ore. @n!er t$e se&aration o( &o,ers t$e Co%rt cannot restrain Congress (rom &assing an' la, or (rom setting into motion t$e legislative mill accor!ing to its internal r%les. 2$%s t$e (ollo,ing acts o( Congress in t$e e4ercise o( its legislative &o,ers are not s%b9ect to 9%!icial restraint: t$e (iling o( bills b' members o( Congress t$e a&&roval o( bills b' eac$ c$amber o( Congress t$e reconciliation b' t$e Bicameral Committee o( a&&rove! bills an! t$e event%al a&&roval into la, o( t$e reconcile! bills b' eac$ c$amber o( Congress. #bsent a clear violation o( s&eci(ic constit%tional limitations or o( constit%tional rig$ts o( &rivate &arties t$e Co%rt cannot e4ercise its &o,er o( 9%!icial revie, over t$e internal &rocesses or &roce!%res o( Congress. 2$e Co%rt $as also no &o,er to !ictate to Congress t$e ob9ect or s%b9ect o( bills t$at Congress s$o%l! enact into la,. 2$e 9%!icial &o,er to revie, t$e constit%tionalit' o( la,s !oes not incl%!e t$e &o,er to &rescribe to Congress ,$at la,s to enact. 2$e Co%rt $as no &o,er to com&el Congress b' man!am%s to enact a la, allo,ing &etitioners regar!less o( t$eir age to vote an! be vote! (or in t$e 7%l' 1C /55/ )M elections. 2o !o so ,o%l! !estro' t$e !elicate s'stem o( c$ec+s an! balances (inel' cra(te! b' t$e Constit%tion (or t$e t$ree coD e.%al coor!inate an! in!e&en!ent branc$es o( government. 1. 6ON t$e &ost&onement o( t$e )M elections amo%nte! to a grave ab%se o( !iscretion. NO. -# No. 81G0 is no, t$e la, t$at &rescribes t$e .%ali(ications o( can!i!ates an! voters (or t$e )M elections. 2$is la, also (i4es t$e !ate o( t$e )M elections. =etitioners $ave not s$o,n t$at t$e Comelec acte! illegall' or ,it$ grave ab%se o( !iscretion in recommen!ing to Congress t$e &ost&onement o( t$e )M elections. 2$e ver' evi!ence relie! %&on b' &etitioners contra!ict t$eir allegation o( illegalit'. 2$e evi!ence consist o( t$e (ollo,ing: ;1< Comelec en banc -esol%tion No. 07G1 !ate! Febr%ar' C /55/ t$at recommen!e! t$e &ost&onement o( t$e )M elections to /551A ;/< t$e letter o( t$en Comelec C$airman Beni&a'o a!!resse! to t$e )&ea+er o( t$e Ho%se o( -e&resentatives an! t$e =resi!ent o( t$e )enateA an! ;1< t$e Con(erence Committee -e&ort consoli!ating )enate Bill No. /5C5 an! Ho%se Bill No. 00CG. 2$e Comelec e4ercise! its &o,er an! !%t' to Een(orce an! a!minister all la,s an! reg%lations relative to t$e con!%ct o( an election &lebiscite initiative re(eren!%m an! recallF an! to Erecommen! to Congress e((ective meas%res to minimiBe election s&en!ing.F 2$e Comelec>s acts en9o' t$e &res%m&tion o( reg%larit' in t$e &er(ormance o( o((icial !%ties. 2$ese acts cannot constit%te &roo( as claime! b' &etitioners t$at t$ere Ee4ists a connivance an! cons&irac' ;among< res&on!ents in contravention o( t$e &resent la,.F
11G

2$e 1887 Constit%tion im&oses %&on t$e Comelec t$e !%t' o( en(orcing an! a!ministering all la,s an! reg%lations relative to t$e con!%ct o( elections. =etitioners (aile! to &rove t$at t$e Comelec committe! grave ab%se o( !iscretion in recommen!ing to Congress t$e &ost&onement o( t$e Ma' G /55/ )M elections. 2$e evi!ence cite! b' &etitioners even establis$ t$at t$e Comelec $as !emonstrate! an earnest e((ort to a!!ress t$e &ractical &roblems in $ol!ing t$e )M elections on Ma' G /55/. 2$e &res%m&tion remains t$at t$e !ecision o( t$e Comelec to recommen! to Congress t$e &ost&onement o( t$e elections ,as ma!e in goo! (ait$ in t$e reg%lar co%rse o( its o((icial !%ties. Grave ab%se o( !iscretion is s%c$ ca&ricio%s an! ,$imsical e4ercise o( 9%!gment t$at is &atent an! gross as to amo%nt to an evasion o( a &ositive !%t' or a virt%al re(%sal to &er(orm a !%t' en9oine! b' la,. =%blic res&on!ents $aving acte! strictl' &%rs%ant to t$eir constit%tional &o,ers an! !%ties ,e (in! no grave ab%se o( !iscretion in t$eir assaile! acts. 1. 6ON t$e e4cl%sion o( &ersons 18D/1 (rom t$e )M ,as %nconstit%tional. NO. @n!er -# No. 81G0 Congress merel' restore! t$e age re.%irement in =D No. G80 t$e original c$arter o( t$e )M ,$ic$ (i4e! t$e ma4im%m age (or members$i& in t$e )M to 'o%t$s less t$an 18 'ears ol!. =etitioners !o not $ave a veste! rig$t to t$e &ermanence o( t$e age re.%irement %n!er )ection 0/0 o( t$e LGC. 3ver' la, &asse! b' Congress is al,a's s%b9ect to amen!ment or re&eal b' Congress. 2$e Co%rt cannot restrain Congress (rom amen!ing or re&ealing la,s (or t$e &o,er to ma+e la,s incl%!es t$e &o,er to c$ange t$e la,s. 2$e Co%rt cannot also !irect t$e Comelec to allo, overDage! voters to vote or be vote! (or in an election t$at is limite! %n!er -# No. 81G0 to 'o%t$s at least 1C b%t less t$an 18 'ears ol!. # la, is nee!e! to allo, all t$ose ,$o $ave t%rne! more t$an /1 'ears ol! on or a(ter Ma' G /55/ to &artici&ate in t$e 7%l' 1C /55/ )M elections. :o%t$s (rom 18 to /1 'ears ol! as o( Ma' G /55/ are also no longer )M members an! cannot &artici&ate in t$e 7%l' 1C /55/ )M elections. Congress ,ill $ave to !eci!e ,$et$er to enact an amen!ator' la,. =etitioners> reme!' is legislation not 9%!icial intervention. =etitioners $ave no &ersonal an! s%bstantial interest in maintaining t$is s%it. # &art' m%st s$o, t$at $e $as been or is abo%t to be !enie! some &ersonal rig$t or &rivilege to ,$ic$ $e is la,(%ll' entitle!. # &art' m%st also s$o, t$at $e $as a real interest in t$e s%it. B' Ereal interestF is meant a &resent s%bstantial interest as !isting%is$e! (rom a mere e4&ectanc' or (%t%re contingent s%bor!inate or inconse.%ential interest. *n t$e instant case &etitioners see+ to en(orce a rig$t originall' con(erre! b' la, on t$ose ,$o ,ere at least 1C b%t not more t$an /1 'ears ol!. No, ,it$ t$e &assage o( -# No. 81G0 t$is rig$t is limite! to t$ose ,$o on t$e !ate o( t$e )M elections are at least 1C b%t less t$an 18 'ears ol!. 2$e ne, la, restricts members$i& in t$e )M to t$is s&eci(ic age gro%&. Not (alling ,it$in t$is classi(ication &etitioners $ave cease! to be members o( t$e )M an! are no longer .%ali(ie! to &artici&ate in t$e 7%l' 1C /55/ )M elections. =lainl' &etitioners no longer $ave a &ersonal an! s%bstantial interest in t$e )M elections. 2$is &etition !oes not raise an' constit%tional iss%e. #t t$e time &etitioners (ile! t$is &etition -# No. 81G0 ,$ic$ reset t$e )M elections an! re!%ce! t$e age re.%irement (or )M members$i& ,as not 'et enacte! into la,. #(ter t$e &assage o( -# No. 81G0 &etitioners (aile! to assail an' &rovision in -# No. 81G0 t$at co%l! be %nconstit%tional. 2o grant &etitioners> &ra'er to be allo,e! to vote an! be vote! (or in t$e 7%l' 1C /55/ )M elections necessitates assailing t$e constit%tionalit' o( -# No. 81G0. 2$is &etitioners $ave not !one. 2$e Co%rt ,ill not stri+e !o,n a la, %nless its constit%tionalit' is &ro&erl' raise! in an a&&ro&riate action an! a!e.%atel' arg%e!. 6ON )M members$i& is a &ro&ert' rig$t. NO. Congress e4ercises t$e &o,er to &rescribe t$e .%ali(ications (or )M members$i&. One ,$o is no longer .%ali(ie! beca%se o( an amen!ment in t$e la, cannot com&lain o( being !e&rive! o( a &ro&rietar' rig$t to )M members$i&. Onl' t$ose ,$o .%ali(' as )M members can contest base! on a stat%tor' rig$t an' act !is.%ali('ing t$em (rom )M members$i& or (rom voting in t$e )M elections. )M members$i& is not a &ro&ert' rig$t &rotecte! b' t$e
1.
117

Constit%tion beca%se it is a mere stat%tor' rig$t con(erre! b' la,. Congress ma' amen! at an' time t$e la, to c$ange or even ,it$!ra, t$e stat%tor' rig$t. # &%blic o((ice is not a &ro&ert' rig$t. #s t$e Constit%tion e4&ressl' states a EU=V%blic o((ice is a &%blic tr%st.F No one $as a veste! rig$t to an' &%blic o((ice m%c$ less a veste! rig$t to an e4&ectanc' o( $ol!ing a &%blic o((ice. *n Corne9o v. Gabriel !eci!e! in 18/5 t$e Co%rt alrea!' r%le!: F#gain (or t$is &etition to come %n!er t$e !%e &rocess o( la, &ro$ibition it ,o%l! be necessar' to consi!er an o((ice a E&ro&ert'.F *t is $o,ever ,ell settle! t$at a &%blic o((ice is not &ro&ert' ,it$in t$e sense o( t$e constit%tional g%aranties o( !%e &rocess o( la, b%t is a &%blic tr%st or agenc'. 2$e basic i!ea o( t$e government is t$at o( a &o&%lar re&resentative government t$e o((icers being mere agents an! not r%lers o( t$e &eo&le one ,$ere no one man or set o( men $as a &ro&rietar' or contract%al rig$t to an o((ice b%t ,$ere ever' o((icer acce&ts o((ice &%rs%ant to t$e &rovisions o( t$e la, an! $ol!s t$e o((ice as a tr%st (or t$e &eo&le $e re&resents.F =etitioners ,$o a&&arentl' !esire to $ol! &%blic o((ice s$o%l! realiBe (rom t$e ver' start t$at no one $as a &ro&rietar' rig$t to &%blic o((ice. 6$ile t$e la, ma+es an )M o((icer an e4Do((icio member o( a local government legislative co%ncil t$e la, !oes not con(er on &etitioners a &ro&rietar' rig$t or even a &ro&rietar' e4&ectanc' to sit in local legislative co%ncils. 2$e constit%tional &rinci&le o( a &%blic o((ice as a &%blic tr%st &recl%!es an' &ro&rietar' claim to &%blic o((ice. 3ven t$e )tate &olic' !irecting Ee.%al access to o&&ort%nities (or &%blic serviceF cannot besto, on &etitioners a &ro&rietar' rig$t to )M members$i& or a &ro&rietar' e4&ectanc' to e4Do((icio &%blic o((ices. Moreover ,$ile t$e )tate &olic' is to enco%rage t$e 'o%t$>s involvement in &%blic a((airs t$is &olic' re(ers to t$ose ,$o belong to t$e class o( &eo&le !e(ine! as t$e 'o%t$. Congress $as t$e &o,er to !e(ine ,$o are t$e 'o%t$ .%ali(ie! to 9oin t$e )M ,$ic$ itsel( is a creation o( Congress. 2$ose ,$o !o not .%ali(' beca%se t$e' are &ast t$e age gro%& !e(ine! as t$e 'o%t$ cannot insist on being &art o( t$e 'o%t$. *n government service once an em&lo'ee reac$es man!ator' retirement age $e cannot invo+e an' &ro&ert' rig$t to cling to $is o((ice. *n t$e same manner since &etitioners are no, &ast t$e ma4im%m age (or members$i& in t$e )M t$e' cannot invo+e an' &ro&ert' rig$t to cling to t$eir )M members$i&. 1. 6ON t$e &ost&onement o( t$e )M elections ,o%l! allo, t$e inc%mbent )M o((icers to &er&et%ate t$emselves in &o,er !e&riving ot$er 'o%t$s o( t$e o&&ort%nit' to serve in elective )M &ositions. NO. 2$is arg%ment !eserves scant consi!eration. 6$ile -# No. 81G0 contains a $ol!Dover &rovision inc%mbent )M o((icials can remain in o((ice onl' %ntil t$eir s%ccessors $ave been electe! or .%ali(ie!. On 7%l' 1C /55/ ,$en t$e )M elections are $el! t$e $ol!Dover &erio! e4&ires an! all inc%mbent )M o((icials a%tomaticall' cease to $ol! t$eir )M o((ices an! t$eir e4Do((icio &%blic o((ices. Munez v. Ari@o Facts: Ma'or *risari o( Loreto #g%san !el )%r s%mmone! to $is o((ice $erein com&lainant #&olinario ). M%ReB (or con(erence res&ecting a lan! !is&%te ,$ic$ M%ReB $a! ,it$ one 2irso #ma!o. #s com&lainant (aile! to atten! t$e con(erence Ma'or *risari iss%e! a ,arrant o( arrest against $im on December /7 1888. 2$e ,arrant ,as serve! an! b' virt%e o( it com&lainant ,as bro%g$t be(ore Ma'or *risari alt$o%g$ no investigation ,as later con!%cte!.Com&lainant (ile! a com&laint against Ma'or *risari (or grave miscon!%ct an! %s%r&ation o( 9%!icial (%nction ,it$ t$e O((ice o( t$e Omb%!sman as ,ell as a!ministrative com&laint (or violation o( t$e Constit%tion miscon!%ct in o((ice an! ab%se o( a%t$orit' ,it$ t$e )angg%niang =anlala,igan o( #g%san !el )%r. #(ter &reliminar' investigation t$e investigating o((icer o( t$e O((ice o( t$e Omb%!sman (ile! a case (or %s%r&ation o( 9%!icial (%nction against Ma'or #s%ero *risari in t$e M%nici&al Circ%it 2rial Co%rt o( Loreto #g%san !el )%r. Originall' ra((le! to t$e 9%!ge o( t$at co%rt t$e criminal case ,as later assigne! to res&on!ent 7%!ge Ciriaco #riRo on acco%nt o( t$e in$ibition o( t$e (irst 9%!ge. #cc%se! *risari move! to .%as$ t$e in(ormation on t$e gro%n! t$at t$e acts com&laine! o( !i! not constit%te a crime %n!er t$e la,. He conten!e! t$at %n!er )ec. 101;1< o( t$e (ormer LGC ;Batas =ambansa Blg. 117< ma'ors ,ere a%t$oriBe! to iss%e ,arrants o( arrest. 7%!ge #riRo !enie! t$e motion to .%as$ on t$e gro%n! t$at t$e &o,er o( ma'ors to iss%e ,arrants o( arrest $a! cease! to e4ist as o( Febr%ar' / 1887 ,$en t$e Constit%tion too+ e((ect. For its &art t$e )angg%niang
118

=anlala,igan acting on t$e a!ministrative com&laint against t$e ma'or (o%n! $im g%ilt' o( miscon!%ct in o((ice an! ab%se o( a%t$orit' an! accor!ingl' or!ere! $im s%s&en!e! (or eig$t ;8< mont$s ,it$o%t &a'. On a&&eal $o,ever t$e De&artment o( *nterior an! Local Government ;D*LG< reverse! on t$e gro%n! t$at ,$at t$e ma'or $a! iss%e! to t$e com&lainant alt$o%g$ !enominate! "6arrant o( #rrest " ,as act%all' 9%st an invitation or a s%mmons. Ma'or *risari (ile! a motion (or reconsi!eration o( t$e or!er o( !enial o( res&on!ent 9%!ge invo+ing t$e resol%tion o( t$e D*LG. 7%!ge #riRo reconsi!ere! $is &revio%s or!er an! !ismisse! t$e case. -es&on!ent sai! in $is or!er: 2$e acc%se! in $is Motion (or -econsi!eration asserts t$at since t$e .%estion abo%t t$e ,arrant o( arrest iss%e! against #&olinario M%ReB $as been resolve! in an a!ministrative &rocee!ings as not t$e ,arrant o( arrest contem&late! b' la, it ,o%l! (ollo, t$en t$at t$is case no, be(ore t$is Co%rt against t$e acc%se! be !ismisse!. 2$e Co%rt (in!s t$at t$e s%b9ect matter in t$is case an! t$at in t$e a!ministrative com&laint arose (rom one an! t$e same inci!ent an! it involve! t$e same &arties. Co%rts are not bo%n! b' t$e (in!ings o( a!ministrative agencies li+e t$e D*LG as in t$is case i( s%c$ (in!ings are tainte! ,it$ %n(airness an! t$ere is arbitrar' action or &al&able serio%s error. 2$e Co%rt believes t$at t$e resol%tion b' t$e a!ministrative agenc' in DLGD#CDG5D81 is not tainte! ,it$ %n(airness an! arbitrariness neit$er it s$o,s arbitrar' action or &al&able an! serio%s error t$ere(ore it m%st be res&ecte! ;Mang%bat vs. !e Castro G.-. 1188/A 7%l' /8 1888A Bl%e Bar Cocon%t =$ili&&ines vs. 2ant%ico 7r. et al. G.-. 075C1 7%l' /8 1888 C%er!o vs. Commission on #%!it G.-. 80C8/ October /7 1888<. @&on recei&t o( t$is or!er com&lainant M%ReB sent t,o letters !ate! 7%l' C an! 1/ 1811 to t$e =resi!ential #ntiDCrime Commission c$arging res&on!ent 7%!ge Ciriaco C. #riRo ,it$ +no,ingl' ren!ering an %n9%st 9%!gment (or !ismissing t$e case against Ma'or *risari. 2$e matter ,as in!orse! to t$e O((ice o( t$e Omb%!sman ,$ic$ as alrea!' state! re(erre! it to t$is Co%rt (or &ossible !isci&linar' action against res&on!ent 9%!ge. *ss%e: 6ON t$e 7%!ge ma' be $el! a!ministrativel' liable. :3). 2$e acts allege! in t$e in(ormation constit%te a crime. @n!er #rt. /01 o( t$e -evise! =enal Co!e t$e crime o( %s%r&ation o( 9%!icial a%t$orit' involves t$e (ollo,ing elements: ;1< t$at t$e o((en!er is an o((icer o( t$e e4ec%tive branc$ o( t$e governmentA an! ;/< t$at $e ass%mes 9%!icial &o,ers or obstr%cts t$e e4ec%tion o( an' or!er or !ecision ren!ere! b' an' 9%!ge ,it$in $is 9%ris!iction. 2$ese elements ,ere allege! in t$e in(ormation. Ma'or *risari ,as an o((icer o( t$e e4ec%tive branc$. *t is not tr%e t$at ,$at $e $a! iss%e! against t$e com&lainant ,as not a ,arrant o( arrest. *t ,as. *n &lain terms it state!: E:o% are $ereb' re.%este!?or!ere! to e((ect t$e arrest o( #&olinario M%ReB o( =oblacion Loreto #g%san !el )%r (or $is re(%sal to ac+no,le!ge t$e )%mmons !ate! December /G 1888 an! bring $im be(ore t$e O((ice o( t$e M%nici&al Ma'or to ans,er an in.%ir'?investigation in connection ,it$ t$e com&laint o( one 2irso #ma!o $el! &en!ing be(ore t$is O((ice.F ;)g!< #)@3-O ). *-*)#-* M%nici&al Ma'or. For an! in t$e absence o( t$e M%nici&al Circ%it 7%!ge. #n' one rea!ing t$e ,arrant co%l! not $ave been mista+en t$at it ,as a ,arrant (or t$e arrest o( t$e com&lainant #&olinario M%ReB. #s a matter o( (act Ma'or *risari 9%sti(ie! $is or!er on t$e basis o( )ec. 101;1< o( t$e (ormer LGC ,$ic$ e4&ressl' &rovi!e! t$at in cases ,$ere t$e ma'or ma' con!%ct &reliminar' investigation t$e ma'or s$all %&on &robable ca%se a(ter e4amination o( ,itnesses $ave t$e a%t$orit' to or!er t$e arrest o( t$e acc%se!." 2$is &rovision $a! $o,ever been re&eale! b' #rt. *** )ec. / o( t$e 1887 Constit%tion =onsica v. *gnalaga: No longer !oes t$e ma'or $ave at t$is time t$e &o,er to con!%ct &reliminar' investigations m%c$ less iss%e or!ers o( arrest. )ection 101 o( t$e LGC con(erring t$is &o,er on t$e ma'or $as been abrogate! ren!ere! (%nct%s o((icio b' t$e 1887 Constit%tion ,$ic$ too+ e((ect on Febr%ar' / 1887 t$e !ate o( its rati(ication b' t$e Fili&ino &eo&le. )ection / #rticle *** o( t$e 1887 Constit%tion &ertinentl' &rovi!es t$at "no searc$ ,arrant or ,arrant o( arrest s$all iss%e e4ce&t %&on &robable ca%se to be !etermine! &ersonall' b' t$e 9%!ge a(ter e4amination %n!er oat$ or a((irmation o( t$e com&lainant an! t$e ,itnesses $e ma' &ro!%ce an! &artic%larl' !escribing t$e &lace to be searc$e! an! t$e &erson or t$ings to be seiBe!." 2$e constit%tional &roscri&tion $as t$ereb' been mani(este! t$at t$ence(ort$ t$e (%nction o( !etermining &robable ca%se an! iss%ing on t$e basis t$ereo( ,arrants o( arrest or searc$ ,arrants ma' be vali!l' e4ercise! onl' b' 9%!ges t$is
118

being evi!ence! b' t$e elimination in t$e &resent Constit%tion o( t$e &$rase "s%c$ ot$er res&onsible o((icer as ma' be a%t$oriBe! b' la," (o%n! in t$e co%nter&art &rovision o( sai! 1871 Constit%tion D ,$o asi!e (rom 9%!ges mig$t con!%ct &reliminar' investigation an! iss%e ,arrants o( arrest or searc$ ,arrants. 2$at t$ere ,as no &en!ing criminal case against t$e com&lainant !i! not ma+e t$e or!er against $im an' less an or!er o( arrest contrar' to t$e o&inion o( D*LG. On t$e ot$er $an! t$e iss%ance o( t$e ,arrant ,$en t$ere ,as be(ore $im no criminal case b%t onl' a lan! !is&%te as it is no, being ma!e to a&&ear onl' ma!e it ,orse (or t$e ma'or (or it ,o%l! t$en a&&ear t$at $e ass%me! a 9%!icial (%nction ,$ic$ even a 9%!ge co%l! not $ave !one. #ll t$e more t$ere(ore res&on!ent 9%!ge s$o%l! not $ave !ismisse! t$e criminal case against t$e ma'or. *t cannot be &reten!e! t$at Ma'or *risari merel' inten!e! to invite or s%mmon M%ReB to $is o((ice beca%se $e $a! &recisel' !one t$is t$e !a' be(ore $e iss%e! t$e ,arrant o( arrest an! $e or!ere! t$e arrest o( com&lainant beca%se t$e latter $a! re(%se! to a&&ear be(ore $im. 2$e s%mmons iss%e! b' Ma'or *risari s$o,s clearl' t$at $e %n!erstoo! t$e !i((erence bet,een a s%mmons an! a ,arrant o( arrest. 2$e s%mmons rea!: E:o% are $ereb' !eman!e! to a&&ear be(ore t$e O((ice o( t$e M%nici&al Ma'or on /7 December 1888 at aro%n! 8:15 #.M. t$en an! t$ere to ans,er in an in.%ir'?investigation in connection ,it$ a certain com&laint o( Mr. 2irso #ma!o lo!ge! in t$is o((ice. *n!ee! res&on!ent $a! &revio%sl' !enie! t$e motion to !ismiss ,$ic$ t$e acc%se! Ma'or *risari $a! (ile! on t$e gro%n! t$at t$e a%t$orit' invo+e! b' $im as basis (or $is ,arrant o( arrest $a! been abrogate! b' t$e Constit%tion. He s%bse.%entl' reverse! $imsel( on t$e gro%n! t$at t$e !ecision o( t$e D*LG (in!ing Ma'or *risari not g%ilt' "m%st be res&ecte!." He sai! "Co%rts are not bo%n! b' (in!ings o( a!ministrative agencies li+e t$e D*LG as in t$is case i( s%c$ (in!ings are tainte! ,it$ %n(airness an! t$ere is arbitrar' action or &al&able serio%s error." )ince t$e D*LG !ecision ,as not so tainte! "t$ere(ore it m%st be res&ecte!." 7%!ge Ciriaco #riRo s$o%l! $ave +no,n t$at t$e case o( Ma'or *risari ,as not be(ore $im on revie, (rom t$e !ecision o( an a!ministrative agenc' an! t$ere(ore t$ere ,as no basis (or a&&l'ing t$e r%le on s%bstantialit' o( evi!ence. 6$at ,as be(ore $im ,as a criminal case an! $e s$o%l! $ave consi!ere! solel' t$e (acts allege! in t$e in(ormation in resolving t$e motion to !ismiss o( t$e acc%se!. Greater Balanga *evelopment Corporation /supra1
105
101

Facts: On December 7 188/ Bistro (ile! be(ore t$e trial co%rt a &etition (or man!am%s an! &ro$ibition ,it$ &ra'er (or tem&orar' restraining or!er or ,rit o( &reliminar' in9%nction against Lim in $is ca&acit' as Ma'or o( t$e Cit' o( Manila. Bistro (ile! t$e case beca%se &olicemen %n!er Lim>s instr%ctions ins&ecte! an! investigate! Bistro>s license as ,ell as t$e ,or+ &ermits an! $ealt$ certi(icates o( its sta((. 2$is ca%se! t$e sto&&age o( ,or+ in Bistro>s nig$t cl%b an! resta%rant o&erations. Lim also re(%se! to acce&t Bistro>s a&&lication (or a b%siness license as ,ell as t$e ,or+ &ermit a&&lications o( Bistro>s sta(( (or t$e 'ear 1881. 2C: iss%e! (irst assaile! 2-O a(ter $earing co%rt grante! Bistro>s a&&lication (or a ,rit o( &ro$ibitor' &reliminar' in9%nction. Des&ite t$e trial co%rt>s or!er Lim still iss%e! a clos%re or!er on Bistro>s o&erations even sen!ing &olicemen to carr' o%t $is clos%re or!er. Bistro (ile! an "@rgent Motion (or Contem&t" against Lim an! t$e &olicemen ,$o sto&&e! Bistro>s o&erations. #t t$e $earing o( t$e motion (or contem&t Bistro ,it$!re, its motion on con!ition t$at Lim ,o%l! res&ect t$e co%rt>s in9%nction. Lim acting t$ro%g$ $is agents an! &olicemen again !isr%&te! Bistro>s b%siness o&erations. Mean,$ile Lim (ile! a motion to !issolve t$e in9%nctive or!er an! to !ismiss t$e case. Lim insiste! t$at t$e &o,er o( a ma'or to ins&ect an! investigate commercial establis$ments an! t$eir sta(( is im&licit in t$e stat%tor' &o,er o( t$e cit' ma'or to iss%e s%s&en! or revo+e b%siness &ermits an! licenses. 2$is stat%tor' &o,er is e4&ressl' &rovi!e! (or in )ection 11 ;l< #rticle ** o( t$e -evise! C$arter o( t$e Cit' o( Manila an! in )ection 0CC &aragra&$ 1 ;iv< o( t$e LGC. 2C !enie!. Lim (ile! ,it$ t$e C# a &etition (or certiorari &ro$ibition an! man!am%s against Bistro an! 7%!ge 6il(re!o -e'es. Lim claime! t$at t$e trial 9%!ge committe! grave ab%se o( !iscretion amo%nting to lac+ o( 9%ris!iction in iss%ing t$e ,rit o( &ro$ibitor' &reliminar' in9%nction. C# !enie!. M- !enie!. Manila Cit' Or!inance No. 778110 too+ e((ect. On t$e same !a' Lim or!ere! t$e 6estern =olice District Comman! to &ermanentl' close !o,n t$e o&erations o( Bistro ,$ic$ or!er t$e &olice im&lemente! at once. *ss%e: 6ON Lim as Ma'or o( t$e Cit' o( Manila &ro&erl' close! !o,n t$e o&erations o( Bistro. NO. 2$e a%t$orit' o( ma'ors to iss%e b%siness licenses an! &ermits is be'on! .%estion. 2$e la, e4&ressl' &rovi!es (or s%c$ a%t$orit'. )ection 11 ;l< #rticle ** o( t$e -evise!
Lim an
Gara#blas v. CA
10/

C$arter o( t$e Cit' o( Manila rea!s: 2$e general !%ties an! &o,ers o( t$e ma'or s$all be: ;l< 2o grant an! re(%se m%nici&al licenses or &ermits o( all classes an! to revo+e t$e same (or violation o( t$e con!itions %&on ,$ic$ t$e' ,ere grante! or i( acts &ro$ibite! b' la, or m%nici&al or!inances are being committe! %n!er t$e &rotection o( s%c$ licenses or in t$e &remises in ,$ic$ t$e b%siness (or ,$ic$ t$e same $ave been grante! is carrie! on or (or an' ot$er reason o( general interest." On t$e ot$er $an! )ection 0CC ;1< ;iv< o( t$eLGC &rovi!es: ;b< For e((icient e((ective an! economical governance t$e &%r&ose o( ,$ic$ is t$e general ,el(are o( t$e Cit' an! its in$abitants &%rs%ant to )ection 1G o( t$is Co!e t$e Cit' Ma'or s$all: ;iv< *ss%e licenses an! &ermits an! s%s&en! or revo+e t$e same (or an' violation o( t$e con!ition %&on ,$ic$ sai! licenses or &ermits $a! been iss%e! &%rs%ant to la, or or!inance." From t$e lang%age o( t$e t,o la,s it is clear t$at t$e &o,er o( t$e ma'or to iss%e b%siness licenses an! &ermits necessaril' incl%!es t$e corollar' &o,er to s%s&en! revo+e or even re(%se to iss%e t$e same. Ho,ever t$e &o,er to s%s&en! or revo+e t$ese licenses an! &ermits is e4&ressl' &remise! on t$e violation o( t$e con!itions o( t$ese &ermits an! licenses. 2$e la,s s&eci(icall' re(er to t$e "violation o( t$e con!ition;s<" on ,$ic$ t$e licenses an! &ermits ,ere iss%e!. )imilarl' t$e &o,er to re(%se to iss%e s%c$ licenses an! &ermits is &remise! on nonDcom&liance ,it$ t$e &rere.%isites (or t$e iss%ance o( s%c$ licenses an! &ermits. 2$e ma'or m%st observe !%e &rocess in e4ercising t$ese &o,ers ,$ic$ means t$at t$e ma'or m%st give t$e a&&licant or licensee notice an! o&&ort%nit' to be $ear!. 2r%e t$e ma'or $as t$e &o,er to ins&ect an! investigate &rivate commercial establis$ments (or an' violation o( t$e con!itions o( t$eir licenses an! &ermits. Ho,ever t$e ma'or $as no &o,er to or!er a &olice rai! on t$ese establis$ments in t$e g%ise o( ins&ecting or investigating t$ese commercial establis$ments. Lim acte! be'on! $is a%t$orit' ,$en $e !irecte! &olicemen to rai! t$e Ne, Bang+o+ Cl%b an! t$e 34otic Gar!en -esta%rant. )%c$ act o( Lim violate! Or!inance No. 771G18 ,$ic$ e4&ressl' &ro$ibits &olice rai!s an! ins&ections to ,it: No member o( t$e 6estern =olice District s$all con!%ct ins&ection o( (oo! an! ot$er b%siness establis$ments (or t$e &%r&ose o( en(orcing sanitar' r%les an! reg%lations ins&ecting licenses an! &ermits an!?or en(orcing internal reven%e an! c%stoms la,s an! reg%lations. 2$is res&onsibilit' s$o%l! be &ro&erl' e4ercise! b' Local Government #%t$orities an! ot$er concerne! agencies." Lim $as no a%t$orit' to close !o,n Bistro>s b%siness or an' b%siness establis$ment in Manila ,it$o%t !%e &rocess o( la,. Lim cannot ta+e re(%ge %n!er t$e -evise! C$arter o( t$e Cit' o( Manila an! t$e LGC. 2$ere is no &rovision in t$ese la,s e4&ressl' or im&lie!l' granting t$e ma'or a%t$orit' to close !o,n &rivate commercial establis$ments ,it$o%t notice an! $earing an! even i( t$ere is s%c$ &rovision ,o%l! be voi!. 2$e !%e &rocess cla%se o( t$e Constit%tion re.%ires t$at Lim s$o%l! $ave given Bistro an o&&ort%nit' to reb%t t$e allegations t$at it violate! t$e con!itions o( its licenses an! &ermits. 2$e reg%lator' &o,ers grante! to m%nici&al cor&orations m%st al,a's be e4ercise! in accor!ance ,it$ la, ,it$ %tmost observance o( t$e rig$ts o( t$e &eo&le to !%e &rocess an! e.%al &rotection o( t$e la,. )%c$ &o,er cannot be e4ercise! ,$imsicall' arbitraril' or !es&oticall'. *n t$e instant case ,e (in! t$at Lim>s e4ercise o( t$is &o,er violate! Bistro>s &ro&ert' rig$ts t$at are &rotecte! %n!er t$e !%e &rocess cla%se o( t$e Constit%tion. Lim !i! not c$arge Bistro ,it$ an' s&eci(ic violation o( t$e con!itions o( its b%siness license or &ermits. )till Lim close! !o,n Bistro>s o&erations even be(ore t$e e4&iration o( its b%siness license on December 11 188/. Lim also re(%se! to acce&t Bistro>s license a&&lication (or 1881 in e((ect !en'ing t$e a&&lication ,it$o%t e4amining ,$et$er it com&lies ,it$ legal &rere.%isites. *isomancop v. *atumanong Facts: -# G710 "#n #ct =rovi!ing (or #n Organic #ct (or t$e #%tonomo%s -egion in M%slim Min!anao " ,as enacte! an! signe! into la,. Lanao !el )%r Mag%in!anao )%l% an! 2a,iD2a,i &%rs%ant to a &lebiscite became t$e #-MM. *n accor!ance ,it$ -.#. G710 t$en =resi!ent #.%ino iss%e! 3.O. 0/G "=lacing t$e Control an! )%&ervision o( t$e O((ices o( t$e De&artment o( =%blic 6or+s an! Hig$,a's ,it$in t$e #-MM %n!er t$e #%tonomo%s -egional
101

Government an! (or ot$er &%r&oses." #-MM ,as (ormall' organiBe! on G November 1885. =resi!ent CoraBon C. #.%ino (le, to Cotabato t$e seat o( t$e -egional Government (or t$e ina%g%ration. #t t$at &oint s$e $a! alrea!' signe! 7 3Os !evolving to #-MM t$e &o,ers o( 7 cabinet !e&artments namel': ;1< local governmentA ;/< labor an! em&lo'mentA ;1< science an! tec$nolog'A ;0< &%blic ,or+s an! $ig$,a'sA ;C< social ,el(are an! !evelo&mentA ;G< to%rismA an! ;7< environment an! national reso%rces. Nearl' nine 'ears later t$en D=6H )ecretar' Kigilar iss%e! D.O. 118 ,$ic$ &rovi!es t$at a D=6H Mara,i )%bDDistrict 3ngineering O((ice s$all $ave 9%ris!iction over all national in(rastr%ct%re &ro9ects an! (acilities %n!er t$e D=6H ,it$in Mara,i Cit' an! t$e &rovince o( Lanao !el )%r. 2$e $ea!.%arters o( t$e Mara,i )%bDDistrict 3ngineering O((ice s$all be at t$e (ormer .%arters o( t$e Mara,i Cit' 3ngineering O((ice. =ersonnel o( t$e aboveDmentione! )%bDDistrict 3ngineering O((ice s$all be ma!e %& o( em&lo'ees o( t$e National Government )ection o( t$e (ormer Mara,i Cit' 3ngineering O((ice ,$o are no, assigne! ,it$ t$e *ligan Cit' )%bDDistrict 3ngineering O((ice as ma' be !etermine! b' t$e D=6H -egion J** -egional Director. #lmost / 'ears later t$en =resi!ent 3stra!a a&&rove! an! signe! into la, -.#. 8888 ,$ic$ constit%te! t$e Cit' o( Mara,i an! t$e m%nici&alities com&rising t$e First District o( t$e =rovince o( Lanao !el )%r into an engineering !istrict to be +no,n as t$e First 3ngineering District o( t$e =rovince o( Lanao !el )%r. Congress later &asse! -.#. 85C0 "#n #ct to )trengt$en an! 34&an! t$e Organic #ct (or t$e #%tonomo%s -egion in M%slim Min!anao #men!ing (or t$e =%r&ose -e&%blic #ct No. G710 entitle! #n #ct =rovi!ing (or t$e #-MM as #men!e!." Li+e its (orer%nner -.#. 85C0 contains !etaile! &rovisions on t$e &o,ers o( t$e -egional Government an! t$e retaine! areas o( governance o( t$e National Government. -.#. 85C0 la&se! into la,. *t ,as rati(ie! in a &lebiscite. 2$e &rovince o( Basilan an! t$e Cit' o( Mara,i also vote! to 9oin #-MM on t$e same !ate. -.#. G710 an! -.#. 85C0 are collectivel' re(erre! to as t$e #-MM Organic #cts. On /1 7%l' /551 &etitioners Disomangco& an! Dimalotang a!!resse! a &etition to t$en D=6H )ecretar' Dat%manong see+ing t$e revocation o( D.O. 118 an! t$e nonDim&lementation o( -.#. 8888. No action $o,ever ,as ta+en on t$e &etition. *ss%es: 1. 6ON &etitioners $ave legal stan!ing. :3). Legal stan!ing or loc%s stan!i is !e(ine! as a &ersonal an! s%bstantial interest in t$e case s%c$ t$at t$e &art' $as s%staine! or ,ill s%stain !irect in9%r' as a res%lt o( t$e governmental act t$at is being c$allenge!. 2$e term "interest" means a material interest an interest in iss%e a((ecte! b' t$e !ecree as !isting%is$e! (rom a mere interest in t$e .%estion involve! or a mere inci!ental interest. # &art' c$allenging t$e constit%tionalit' o( a la, act or stat%te m%st s$o, "not onl' t$at t$e la, is invali! b%t also t$at $e $as s%staine! or is in imme!iate or imminent !anger o( s%staining some !irect in9%r' as a res%lt o( its en(orcement an! not merel' t$at $e s%((ers t$ereb' in some in!e(inite ,a'." He m%st s$o, t$at $e $as been or is abo%t to be !enie! some rig$t or &rivilege to ,$ic$ $e is la,(%ll' entitle! or t$at $e is abo%t to be s%b9ecte! to some b%r!ens or &enalties b' reason o( t$e stat%te com&laine! o(. B%t (ollo,ing t$e ne, tren! t$is Co%rt is incline! to ta+e cogniBance o( a s%it alt$o%g$ it !oes not satis(' t$e re.%irement o( legal stan!ing ,$en &aramo%nt interests are involve!. *n several cases t$e Co%rt $as a!o&te! a liberal stance on t$e loc%s stan!i o( a &etitioner ,$ere t$e &etitioner is able to cra(t an iss%e o( transcen!ental signi(icance to t$e &eo&le. *n t$e instant case &etitioner Disomangco& $ol!s t$e &osition o( 3ngineer *K. 6$en $e (ile! t$is &etition $e ,as t$e O((icerDinDC$arge O((ice o( t$e District 3ngineer o( t$e First 3ngineering District o( D=6HD#-MM Lanao !el )%r. On t$e ot$er $an! &etitioner Dimalotang is an 3ngineer ** an! =resi!ent o( t$e ran+ an! (ile em&lo'ees also o( t$e First 3ngineering District o( D=6HD#-MM in Lanao !el )%r. Bot$ are c$arge! ,it$ t$e !%t' an! res&onsibilit' o( s%&ervising an! im&lementing all &%blic ,or+s &ro9ects to be %n!erta+en an! being %n!erta+en in Lanao !el )%r ,$ic$ is t$e area o( t$eir 9%ris!iction. *t is t$%s not (arD(etc$e! t$at t$e creation o( t$e Mara,i )%bD District 3ngineering O((ice %n!er D.O. 118 an! t$e creation o( an! a&&ro&riation o( (%n!s to t$e First 3ngineering District o( Lanao !el )%r as !irecte! %n!er -.#. 8888 ,ill a((ect t$e &o,ers (%nctions an! res&onsibilities o( t$e &etitioners an! t$e D=6HD#-MM. #s t$e t,o o((ices $ave a&&arentl' been en!o,e! ,it$ (%nctions almost i!entical to t$ose o( D=6HD#-MM First 3ngineering District in Lanao !el )%r it is li+el' t$at &etitioners are in imminent !anger o(
100

being ease! o%t o( t$eir !%ties an! not remotel' even t$eir 9obs. 2$eir material an! s%bstantial interests ,ill !e(initel' be &re9%!ice! b' t$e en(orcement o( D.O. 118 an! -.#. 8888. )%c$ in9%r' is !irect an! imme!iate. 2$%s t$e' can legitimatel' c$allenge t$e vali!it' o( t$e enactments s%b9ect o( t$e instant case. 6ON -.#. 8888 is constit%tional. 2$e c$allenge! la, never became o&erative an! ,as s%&erse!e! or re&eale! b' a s%bse.%ent enactment. 2$e #-MM Organic #cts are !eeme! a &art o( t$e regional a%tonom' sc$eme. 6$ile t$e' are classi(ie! as stat%tes t$e Organic #cts are more t$an or!inar' stat%tes beca%se t$e' en9o' a((irmation b' a &lebiscite. Hence t$e &rovisions t$ereo( cannot be amen!e! b' an or!inar' stat%te s%c$ as -.#. 8888 in t$is case. 2$e amen!ator' la, $as to be s%bmitte! to a &lebiscite. 2$e (irst #-MM Organic #ct -.#. G570 as im&lemente! b' 3.O. 0/G !evolve! t$e (%nctions o( t$e D=6H in t$e #-MM ,$ic$ incl%!es Lanao !el )%r ;min%s Mara,i Cit' at t$e time<18 to t$e -egional Government. B' creating an o((ice ,it$ &revio%sl' !evolve! (%nctions -.#. 8888 in essence so%g$t to amen! -.#. G570. 2$e amen!ator' la, s$o%l! t$ere(ore (irst obtain t$e a&&roval o( t$e &eo&le o( t$e #-MM be(ore it co%l! vali!l' ta+e e((ect. #bsent com&liance ,it$ t$is re.%irement -.#. 8888 $as not even become o&erative. From anot$er &ers&ective -.#. 8888 ,as re&eale! an! s%&erse!e! b' -.#. 85C0. 6$ere a stat%te o( later !ate clearl' reveals an intention on t$e &art o( t$e legislat%re to abrogate a &rior act on t$e s%b9ect t$at intention m%st be given e((ect. O( co%rse t$e intention to re&eal m%st be clear an! mani(est. *m&lie! re&eal b' irreconcilable inconsistenc' ta+es &lace ,$en t$e t,o stat%tes cover t$e same s%b9ect matterA t$e' are clearl' inconsistent an! incom&atible ,it$ eac$ ot$er t$at t$e' cannot be reconcile! or $armoniBe!A an! bot$ cannot be given e((ect t$at is t$at one la, cannot be en(orce! ,it$o%t n%lli('ing t$e ot$er. -.#. 85C0 is anc$ore! on t$e 1887 Constit%tion. *t a!vances t$e constit%tional grant o( a%tonom' b' !etailing t$e &o,ers o( t$e #-G covering among ot$ers Lanao !el )%r an! Mara,i Cit' one o( ,$ic$ is its 9%ris!iction over regional %rban an! r%ral &lanning. -.#. 8888 $o,ever vent%res to reestablis$ t$e National GovernmentHs 9%ris!iction over in(rastr%ct%re &rograms in Lanao !el )%r. -.#. 8888 is &atentl' inconsistent ,it$ -.#. 85C0 an! it !estro's t$e latter la,Hs ob9ective. Clearl' -.#. 8888 is antagonistic to an! cannot be reconcile! ,it$ bot$ #-MM Organic #cts -.#. G710 an! -.#. 85C0. 2$e +ernel o( t$e antagonism an! !is$armon' lies in t$e regional a%tonom' ,$ic$ t$e #-MM Organic #cts or!ain &%rs%ant to t$e Constit%tion. On t$e ot$er $an! -.#. 8888 contravenes tr%e !ecentraliBation ,$ic$ is t$e essence o( regional a%tonom'. -egional #%tonom' @n!er -.#. G710 an! -.#. 85C0: 2$e 1887 Constit%tion man!ates regional a%tonom' to give a bol! an! %ne.%ivocal ans,er to t$e cr' (or a meaning(%l e((ective an! (orce(%l a%tonom'.0/ #ccor!ing to Commissioner 7ose Nolle!o C$airman o( t$e Committee ,$ic$ !ra(te! t$e &rovisions it "is an in!ictment against t$e stat%s .%o o( a %nitar' s'stem t$at to m' min! $as inel%ctabl' tie! t$e $an!s o( &rogress in o%r co%ntr' . . . o%r var'ing regional c$aracteristics are (actors to ca&italiBe on to attain national strengt$ t$ro%g$ !ecentraliBation. 2$e i!ea be$in! t$e Constit%tional &rovisions (or a%tonomo%s regions is to allo, t$e se&arate !evelo&ment o( &eo&les ,it$ !istinctive c%lt%res an! tra!itions. 2$ese c%lt%res as a matter o( rig$t m%st be allo,e! to (lo%ris$. #%tonom' as a national &olic' recogniBes t$e ,$oleness o( t$e =$ili&&ine societ' in its et$noling%istic c%lt%ral an! even religio%s !iversities. *t strives to (ree =$ili&&ine societ' o( t$e strain an! ,astage ca%se! b' t$e assimilationist a&&roac$. =olicies emanating (rom t$e legislat%re are invariabl' assimilationist in c$aracter !es&ite c$annels being o&en (or minorit' re&resentation. #s a res%lt !emocrac' becomes an iron' to t$e minorit' gro%&. 2$e nee! (or regional a%tonom' is more &ressing in t$e case o( t$e Fili&ino M%slims an! t$e Cor!illera &eo&le ,$o $ave been (ig$ting (or it. 2$eir &olitical str%ggle $ig$lig$ts t$eir %ni.%e c%lt%res an! t$e %nres&onsiveness o( t$e %nitar' s'stem to t$eir as&irations. 2$e MorosH str%ggle (or sel(D !etermination !ates as (ar bac+ as t$e )&anis$ con.%est in t$e =$ili&&ines. 3ven at &resent t$e str%ggle goes on. =er(orce regional a%tonom' is also a means to,ar!s solving e4isting serio%s &eace an! or!er &roblems an! secessionist
/.
10C

movements. =arent$eticall' a%tonom' !ecentraliBation an! regionaliBation in international la, $ave become &oliticall' acce&table ans,ers to intractable &roblems o( nationalism se&aratism et$nic con(lict an! t$reat o( secession. Ho,ever t$e creation o( a%tonomo%s regions !oes not signi(' t$e establis$ment o( a sovereignt' !istinct (rom t$at o( t$e -e&%blic as it can be installe! onl' ",it$in t$e (rame,or+ o( t$is Constit%tion an! t$e national sovereignt' as ,ell as territorial integrit' o( t$e -e&%blic o( t$e =$ili&&ines." -egional a%tonom' is t$e !egree o( sel(D !etermination e4ercise! b' t$e local government %nit visD`D vis t$e central government. 2$e ob9ective o( t$e a%tonom' s'stem is to &ermit !etermine! gro%&s ,it$ a common tra!ition an! s$are! socialDc%lt%ral c$aracteristics to !evelo& (reel' t$eir ,a's o( li(e an! $eritage e4ercise t$eir rig$ts an! be in c$arge o( t$eir o,n b%siness. 2$is is ac$ieve! t$ro%g$ t$e establis$ment o( a s&ecial governance regime (or certain member comm%nities ,$o c$oose t$eir o,n a%t$orities (rom ,it$in t$e comm%nit' an! e4ercise t$e 9%ris!ictional a%t$orit' legall' accor!e! to t$em to !eci!e internal comm%nit' a((airs. DecentraliBation is a !ecision b' t$e central government a%t$oriBing its s%bor!inates ,$et$er geogra&$icall' or (%nctionall' !e(ine! to e4ercise a%t$orit' in certain areas. *t involves !ecisionDma+ing b' s%bnational %nits. *t is t'&icall' a !elegate! &o,er ,$erein a larger government c$ooses to !elegate certain a%t$orit' to more local governments. Fe!eralism im&lies some meas%re o( !ecentraliBation b%t %nitar' s'stems ma' also !ecentraliBe. DecentraliBation !i((ers intrinsicall' (rom (e!eralism in t$at t$e s%bD%nits t$at $ave been a%t$oriBe! to act ;b' !elegation< !o not &ossess an' claim o( rig$t against t$e central government. DecentraliBation comes in t,o (ormsS!econcentration an! !evol%tion. Deconcentration is a!ministrative in nat%reA it involves t$e trans(er o( (%nctions or t$e !elegation o( a%t$orit' an! res&onsibilit' (rom t$e national o((ice to t$e regional an! local o((ices. 2$is mo!e o( !ecentraliBation is also re(erre! to as a!ministrative !ecentraliBation. Devol%tion on t$e ot$er $an! connotes &olitical !ecentraliBation or t$e trans(er o( &o,ers res&onsibilities an! reso%rces (or t$e &er(ormance o( certain (%nctions (rom t$e central government to local government %nits. 2$is is a more liberal (orm o( !ecentraliBation since t$ere is an act%al trans(er o( &o,ers an! res&onsibilities. *t aims to grant greater a%tonom' to local government %nits in cogniBance o( t$eir rig$t to sel(Dgovernment to ma+e t$em sel(Dreliant an! to im&rove t$eir a!ministrative an! tec$nical ca&abilities. 2$e !imin%tion o( CongressH &o,ers over a%tonomo%s regions ,as con(irme! in GanBon v. Co%rt o( #&&eals: "t$e omission ;o( "as ma' be &rovi!e! b' la,"< signi(ies not$ing more t$an to %n!erscore local governmentsH a%tonom' (rom Congress an! to brea+ CongressH HcontrolH over local government a((airs." 2$is is tr%e to s%b9ects over ,$ic$ a%tonomo%s regions $ave &o,ers as s&eci(ie! in )ections 18 an! /5 #rticle J o( t$e 1887 Constit%tion. 34&ressl' not incl%!e! t$erein are &o,ers over certain areas. 6ort$' o( note is t$at t$e area o( &%blic ,or+s is not e4cl%!e! an! neit$er is it reserve! (or t$e National Government. More im&ortantl' Congress itsel( t$ro%g$ -.#. 85C0 trans(erre! an! !evolve! t$e a!ministrative an! (iscal management o( &%blic ,or+s an! (%n!s (or &%blic ,or+s to t$e #-G. @nless a&&rove! b' t$e -egional #ssembl' no &%blic ,or+s (%n!s allocate! b' t$e central government or national government (or t$e -egional Government or allocate! b' t$e -egional Government (rom its o,n reven%es ma' be !isb%rse! !istrib%te! realigne! or %se! in an' manner. 2$e aim o( t$e Constit%tion is to e4ten! to t$e a%tonomo%s &eo&les t$e &eo&le o( M%slim Min!anao in t$is case t$e rig$t to sel(D!eterminationSa rig$t to c$oose t$eir o,n &at$ o( !evelo&mentA t$e rig$t to !etermine t$e &olitical c%lt%ral an! economic content o( t$eir !evelo&ment &at$ ,it$in t$e (rame,or+ o( t$e sovereignt' an! territorial integrit' o( t$e =$ili&&ine -e&%blic.85 )el(D!etermination re(ers to t$e nee! (or a &olitical str%ct%re t$at ,ill res&ect t$e a%tonomo%s &eo&lesH %ni.%eness an! grant t$em s%((icient room (or sel(D e4&ression an! sel(Dconstr%ction. *n trea!ing t$eir c$osen &at$ o( !evelo&ment t$e M%slims in Min!anao are to be given (ree!om an! in!e&en!ence ,it$ minim%m inter(erence (rom t$e National Government. 2$is necessaril' incl%!es t$e (ree!om to !eci!e on b%il! s%&ervise an! maintain t$e &%blic ,or+s an! in(rastr%ct%re
10G

&ro9ects ,it$in t$e a%tonomo%s region. 2$e !evol%tion o( t$e &o,ers an! (%nctions o( t$e D=6H in t$e #-MM an! trans(er o( t$e a!ministrative an! (iscal management o( &%blic ,or+s an! (%n!s to t$e #-G are meant to be tr%e meaning(%l an! %n(ettere!. 2$is %nassailable concl%sion is gro%n!e! on a clear consens%s reac$e! at t$e Constit%tional Commission an! rati(ie! b' t$e entire Fili&ino electorate on t$e centralit' o( !ecentraliBation o( &o,er as t$e a&&ro&riate vessel o( !eliverance (or M%slim Fili&inos an! t$e %ltimate %nit' o( M%slims an! C$ristians in t$is co%ntr'. 6it$ -.#. 8888 $o,ever t$is (ree!om is ta+en a,a' an! t$e National Government ta+es control again. 2$e $an!s once more o( t$e a%tonomo%s &eo&les are reine! in an! tie! %&. 2$e c$allenge! la, creates an o((ice ,it$ (%nctions an! &o,ers ,$ic$ b' virt%e o( 3.O. 0/G $ave been &revio%sl' !evolve! to t$e D=6HD#-MM First 3ngineering District in Lanao !el )%r. 3.O. 0/G clearl' or!ains t$e trans(er o( t$e control an! s%&ervision o( t$e o((ices o( t$e D=6H ,it$in t$e #-MM incl%!ing t$eir (%nctions &o,ers an! res&onsibilities &ersonnel e.%i&ment &ro&erties an! b%!gets to t$e #-G. #mong its ot$er (%nctions t$e D=6HD#-MM %n!er t$e control o( t$e -egional Government s$all be res&onsible (or $ig$,a's (loo! control an! ,ater reso%rce !evelo&ment s'stems an! ot$er &%blic ,or+s ,it$in t$e #-MM. *ts sco&e o( &o,er incl%!es t$e &lanning !esign constr%ction an! s%&ervision o( &%blic ,or+s. #ccor!ing to -.#. 85C0 t$e reac$ o( t$e -egional Government enables it to a&&ro&riate manage an! !isb%rse all &%blic ,or+ (%n!s allocate! (or t$e region b' t$e central government. 2$e %se o( t$e ,or! "&o,ers" in 3.O. 0/G mani(ests an %nmista+able case o( !evol%tion. *n t$is regar! it is not amiss to cite O&inion No. 1/5 ). 18818/ o( t$e )ecretar' o( 7%stice on ,$et$er t$e national !e&artments or t$eir co%nter&art !e&artments in t$e #-G are res&onsible (or im&lementation o( roa!s r%ral ,ater s%&&l' $ealt$ e!%cation ,omen in !evelo&ment agric%lt%ral e4tension an! ,aters$e! management. -e(erring to )ection / #rticle K o( -.#. G710 ,$ic$ en%merates t$e &o,ers o( t$e #-G $e states:*t is clear (rom t$e (oregoing &rovision o( la, t$at e4ce&t (or t$e areas o( e4ec%tive &o,er mentione! t$erein all ot$er s%c$ areas s$all be e4ercise! b' t$e #%tonomo%s -egional Government ;"#-G"< o( t$e #%tonomo%s -egion in M%slim Min!anao. *t is note! t$at &rograms relative to in(rastr%ct%re (acilities $ealt$ e!%cation ,omen in !evelo&ment agric%lt%ral e4tension an! ,aters$e! management !o not (all %n!er an' o( t$e e4em&te! areas liste! in t$e above.%ote! &rovision o( la,. 2$%s t$e inevitable concl%sion is t$at all t$ese s&$eres o( e4ec%tive res&onsibilit' $ave been trans(erre! to t$e #-G. -ein(orcing t$e above vie, are t$e vario%s e4ec%tive or!ers iss%e! b' t$e =resi!ent &rovi!ing (or t$e !evol%tion o( t$e &o,ers an! (%nctions o( s&eci(ie! e4ec%tive !e&artments o( t$e National Government to t$e #-G. 2$ese are 3.O. Nos. 0/C ;De&artment o( Labor an! 3m&lo'ment Local Government 2o%rism 3nvironment an! Nat%ral -eso%rces )ocial 6el(are an! Develo&ment an! )cience an! 2ec$nolog'< 0/G ;De&artment o( =%blic 6or+s an! Hig$,a's< 0C8 ;De&artment o( 3!%cation C%lt%re an! )&orts< an! 0G5 ;De&artment o( #gric%lt%re<. 2$e e4ec%tion o( &ro9ects on in(rastr%ct%re e!%cation ,omen agric%lt%ral e4tension an! ,aters$e! management ,it$in t$e #%tonomo%s -egion o( M%slim Min!anao normall' (all ,it$in t$e res&onsibilit' o( one o( t$e a(orementione! e4ec%tive !e&artments o( t$e National Government b%t b' virt%e o( t$e a(orestate! 3Os s%c$ res&onsibilit' $as been trans(erre! to t$e #-G. 3.O. 0/G ,as iss%e! to im&lement t$e &rovisions o( t$e (irst #-MM Organic #ct -.#. G710St$e vali!it' o( ,$ic$ t$is Co%rt %&$el! in t$e case o( #bbas v. Commission on 3lections.81 *n )ection 0 #rticle JK*** o( sai! #ct "central government or national government o((ices an! agencies in t$e a%tonomo%s region ,$ic$ are not e4cl%!e! %n!er )ection 1 #rticle *K80 o( t$is Organic #ct s$all be &lace! %n!er t$e control an! s%&ervision o( t$e -egional Government &%rs%ant to a sc$e!%le &rescribe! b' t$e oversig$t committee." 3vi!entl' t$e intention is to ce!e some i( not most o( t$e &o,ers o( t$e national government to t$e a%tonomo%s government in or!er to e((ect%ate a veritable a%tonom'. 2$e contin%e! en(orcement o( -.#. 8888 t$ere(ore r%ns a(o%l o( t$e #-MM Organic #cts an! res%lts in t$e recall o( &o,ers ,$ic$ $ave &revio%sl' been $an!e! over. 2$is
107

s$o%l! not be sanctione! else,ise t$e Organic #ctsH !esire (or greater a%tonom' (or t$e #-MM in accor!ance ,it$ t$e Constit%tion ,o%l! be .%elle!. *t bears stressing t$at national la,s are s%b9ect to t$e Constit%tion one o( ,$ose state &olicies is to ens%re t$e a%tonom' o( a%tonomo%s regions. ;)ection /C #rticle ** o( t$e 1887 Constit%tion< -.#. 8888 $as ma!e t$e D=6HD#-MM e((ete an! ren!ere! regional a%tonom' ill%sor' ,it$ res&ect to in(rastr%ct%re &ro9ects. 2$e Congressional -ecor! s$o,s on t$e ot$er $an! t$at t$e "lac+ o( an im&lementing an! monitoring bo!' ,it$in t$e area" $as $in!ere! t$e s&ee!' im&lementation o( in(rastr%ct%re &ro9ects.8C #&&arentl' in t$e legislat%reHs estimation t$e e4isting D=6HD#-MM engineering !istricts (aile! to meas%re %& to t$e tas+. B%t i( it ,as in!ee! t$e case t$e &roblem co%l! not be solve! t$ro%g$ t$e sim&le legislative creation o( an incongr%o%s engineering !istrict (or t$e central government in t$e #-MM. #s it ,as Ho%se Bill No. 88C ,$ic$ %ltimatel' became -.#. 8888 ,as &asse! in recor! time on secon! rea!ing ;not more t$an 15 min%tes< absol%tel' ,it$o%t t$e %s%al s&onsors$i& s&eec$ an! !ebates.8G 2$e &reci&itate s&ee! ,$ic$ c$aracteriBe! t$e &assage o( -.#. 8888 is !i((ic%lt to com&re$en! since -.#. 8888 co%l! $ave res%lte! in t$e amen!ment o( t$e (irst #-MM Organic #ct an! t$ere(ore co%l! not ta+e e((ect ,it$o%t (irst being rati(ie! in a &lebiscite. 6$at is more ba((ling is t$at in Marc$ /551 or barel' t,o ;/< mont$s a(ter it enacte! -.#. 8888 in 7an%ar' /551 Congress &asse! -.#. 85C0 t$e secon! #-MM Organic #ct ,$ere it rea((irme! t$e !evol%tion o( t$e D=6H in #-MM incl%!ing Lanao !el )%r an! Mara,i Cit' to t$e -egional Government an! e((ectivel' re&eale! -.#. 8888. /. 6ON DO 118 is constit%tional. D=6H De&artment Or!er No. 118: D.O. 118 creating t$e Mara,i )%bDDistrict 3ngineering O((ice ,$ic$ $as 9%ris!iction over in(rastr%ct%re &ro9ects ,it$in Mara,i Cit' an! Lanao !el )%r is violative o( t$e &rovisions o( 3.O. 0/G. 2$e 34ec%tive Or!er ,as iss%e! &%rs%ant to -.#. G710S,$ic$ initiate! t$e creation o( t$e constit%tionall'D man!ate! a%tonomo%s region87 an! ,$ic$ !e(ine! t$e basic str%ct%re o( t$e a%tonomo%s government.88 3.O. 0/G so%g$t to im&lement t$e trans(er o( t$e control an! s%&ervision o( t$e D=6H ,it$in t$e #-MM to t$e #%tonomo%s -egional Government. *n &artic%lar it i!enti(ie! (o%r ;0< District 3ngineering O((ices in eac$ o( t$e (o%r ;0< &rovinces namel': Lanao !el )%r Mag%in!anao )%l% an! 2a,iD2a,i.88 #ccor!ingl' t$e First 3ngineering District o( t$e D=6HD #-MM in Lanao !el )%r $as 9%ris!iction over t$e &%blic ,or+s ,it$in t$e &rovince. 2$e o((ice create! %n!er D.O. 118 $aving essentiall' t$e same &o,ers is a !%&lication o( t$e D=6HD#-MM First 3ngineering District in Lanao !el )%r (orme! %n!er t$e aegis o( 3.O. 0/G. 2$e !e&artment or!er in e((ect ta+es bac+ &o,ers ,$ic$ $ave been &revio%sl' !evolve! %n!er t$e sai! e4ec%tive or!er. D.O. 118 r%ns co%nter to t$e &rovisions o( 3.O. 0/G. 2$e D=6HHs or!er li+e s&ring ,ater cannot rise $ig$er t$an its so%rce o( &o,erSt$e 34ec%tive. 3.O. No. 1/0 %&on ,$ic$ D.O. 118 is base! is a general la, reorganiBing t$e Ministr' o( =%blic 6or+s an! Hig$,a's ,$ile 3.O. 0/G is a s&ecial la, trans(erring t$e control an! s%&ervision o( t$e D=6H o((ices ,it$in #-MM to t$e #%tonomo%s -egional Government. 2$e latter stat%te s&eci(icall' a&&lies to D=6HD#-MM o((ices. 3.O. 1/0 s$o%l! t$ere(ore give ,a' to 3.O. 0/G in t$e instant case. *n an' event t$e #-MM Organic #cts an! t$eir rati(ication in a &lebiscite in e((ect s%&erse!e! 3.O. 1/0. *n case o( an irreconcilable con(lict bet,een t,o la,s o( !i((erent vintages t$e later enactment &revails beca%se it is t$e later legislative ,ill. F%rt$er in its re&ealing cla%se -.#. 85C0 states t$at "all la,s !ecrees or!ers r%les an! reg%lations an! ot$er iss%ances or &arts t$ereo( ,$ic$ are inconsistent ,it$ t$is Organic #ct are $ereb' re&eale! or mo!i(ie! accor!ingl'."81 6it$ t$e re&eal o( 3.O. 1/0 ,$ic$ is t$e basis o( D.O. 118 it necessaril' (ollo,s t$at D.O. 118 ,as also ren!ere! (%nct%s o((icio b' t$e #-MM Organic #cts. Abbas v. COM%L%C Facts: 2$e &resent controvers' relates to t$e &lebiscite in 11 &rovinces an! nine 8 cities in Min!anao an! =ala,an in im&lementation o( -# G710 "#n #ct =rovi!ing (or an Organic #ct (or t$e #-MM." 2$ese consoli!ate! &etitions &ra' t$at t$e Co%rt: ;1< en9oin t$e Commission on 3lections ;COM3L3C< (rom con!%cting t$e &lebiscite an! t$e )ecretar' o( B%!get an! Management (rom releasing (%n!s to t$e COM3L3C (or t$at &%r&oseA an! ;/< !eclare
108

-.#. No. G710 or &arts t$ereo( %nconstit%tional. *n 1887 a ne, Constit%tion ,as rati(ie! ,$ic$ t$e (or t$e (irst time &rovi!e! (or regional a%tonom' #rticle J section 1C o( t$e c$arter &rovi!es t$at "UtV$ere s$all be create! a%tonomo%s regions in M%slim Min!anao an! in t$e Cor!illeras consisting o( &rovinces cities m%nici&alities an! geogra&$ical areas s$aring common an! !istinctive $istorical an! c%lt%ral $eritage economic an! social str%ct%res an! ot$er relevant c$aracteristics ,it$in t$e (rame,or+ o( t$is Constit%tion an! t$e national sovereignt' as ,ell as territorial integrit' o( t$e -e&%blic o( t$e =$ili&&ines. =%rs%ant to t$e constit%tional man!ate -.#. No. G710 ,as enacte! an! signe! into la, on #%g%st 1 1888. *ss%es: 1. 6ON certain &rovisions o( -.#. No. G710 con(lict ,it$ t$e &rovisions o( t$e 2ri&oli #greement. *n t$e (irst &lace it is no, t$e Constit%tion itsel( t$at &rovi!es (or t$e creation o( an a%tonomo%s region in M%slim Min!anao. 2$e stan!ar! (or an' in.%ir' into t$e vali!it' o( -.#. No. G710 ,o%l! t$ere(ore be ,$at is so &rovi!e! in t$e Constit%tion. 2$%s an' con(lict bet,een t$e &rovisions o( -.#. No. G710 an! t$e &rovisions o( t$e 2ri&oli #greement ,ill not $ave t$e e((ect o( en9oining t$e im&lementation o( t$e Organic #ct. #ss%ming (or t$e sa+e o( arg%ment t$at t$e 2ri&oli #greement is a bin!ing treat' or international agreement it ,o%l! t$en constit%te &art o( t$e la, o( t$e lan!. B%t as internal la, it ,o%l! not be s%&erior to -.#. No. G710 an enactment o( t$e Congress o( t$e =$ili&&ines rat$er it ,o%l! be in t$e same class as t$e latter. 2$%s i( at all -.#. No. G710 ,o%l! be amen!ator' o( t$e 2ri&oli #greement being a s%bse.%ent la,. Onl' a !etermination b' t$is Co%rt t$at -.#. No. G710 contravene! t$e Constit%tion ,o%l! res%lt in t$e granting o( t$e relie(s so%g$t. /. 6ON ma9orit' re(ers to a ma9orit' o( t$e total votes cast in t$e &lebiscite in all t$e constit%ent %nits or a ma9orit' in eac$ o( t$e constit%ent %nits or bot$T *( t$e (ramers o( t$e Constit%tion inten!e! to re.%ire a&&roval b' a ma9orit' o( all t$e votes cast in t$e &lebiscite t$e' ,o%l! $ave so in!icate!. 2$%s in #rticle JK*** section /7 it is &rovi!e! t$at "UtV$is Constit%tion s$all ta+e e((ect imme!iatel' %&on its rati(ication b' a ma9orit' o( t$e votes cast in a &lebiscite $el! (or t$e &%r&ose ... Com&aring t$is ,it$ t$e &rovision on t$e creation o( t$e a%tonomo%s region ,$ic$ rea!s: 2$e creation o( t$e a%tonomo%s region s$all be e((ective ,$en a&&rove! b' ma9orit' o( t$e votes cast b' t$e constit%ent %nits in a &lebiscite calle! (or t$e &%r&ose &rovi!e! t$at onl' &rovinces cities an! geogra&$ic areas voting (avorabl' in s%c$ &lebiscite s$all be incl%!e! in t$e a%tonomo%s region. U#rt. J sec 18 &ara /V. *t ,ill rea!il' be seen t$at t$e creation o( t$e a%tonomo%s region is ma!e to !e&en! not on t$e total ma9orit' vote in t$e &lebiscite b%t on t$e ,ill o( t$e ma9orit' in eac$ o( t$e constit%ent %nits an! t$e &roviso %n!erscores t$is. (or i( t$e intention o( t$e (ramers o( t$e Constit%tion ,as to get t$e ma9orit' o( t$e totalit' o( t$e votes cast t$e' co%l! $ave sim&l' a!o&te! t$e same &$raseolog' as t$at %se! (or t$e rati(ication o( t$e Constit%tion i.e. "t$e creation o( t$e a%tonomo%s region s$all be e((ective ,$en a&&rove! b' a ma9orit' o( t$e votes cast in a &lebiscite calle! (or t$e &%r&ose." *t is t$%s clear t$at ,$at is re.%ire! b' t$e Constit%tion is a sim&le ma9orit' o( votes a&&roving t$e organic #ct in in!ivi!%al constit%ent %nits an! not a !o%ble ma9orit' o( t$e votes in all constit%ent %nits &%t toget$er as ,ell as in t$e in!ivi!%al constit%ent %nits. More im&ortantl' beca%se o( its categorical lang%age t$is is also t$e sense in ,$ic$ t$e vote re.%irement in t$e &lebiscite &rovi!e! %n!er #rticle J section 18 m%st $ave been %n!erstoo! b' t$e &eo&le ,$en t$e' rati(ie! t$e Constit%tion. 6ON onl' t$ose areas ,$ic$ to $is vie, s$are common an! !istinctive $istorical an! c%lt%ral $eritage economic an! social str%ct%res an! ot$er relevant c$aracteristics s$o%l! be &ro&erl' incl%!e! ,it$in t$e coverage o( t$e a%tonomo%s region. MamaDo insists t$at -.#. No. G710 is %nconstit%tional beca%se onl' t$e &rovinces o( Basilan )%l% 2a,iD2a,i Lanao !el )%r Lanao !el Norte an! Mag%in!anao an! t$e cities o( Mara,i an! Cotabato an! not all o( t$e 11 &rovinces an! 8 cities incl%!e! in t$e Organic #ct &ossess s%c$ conc%rrence in $istorical an! c%lt%ral $eritage an! ot$er relevant c$aracteristics. B' incl%!ing areas ,$ic$ !o not strictl' s$are t$e same c$aracteristic as t$e ot$ers &etitioner claims t$at Congress $as e4&an!e! t$e sco&e o(
/.
108

t$e a%tonomo%s region ,$ic$ t$e constit%tion itsel( $as &rescribe! to be limite!. =etitionerHs arg%ment is not tenable. 2$e Constit%tion la's !o,n t$e stan!ar!s b' ,$ic$ Congress s$all !etermine ,$ic$ areas s$o%l! constit%te t$e a%tonomo%s region. G%i!e! b' t$ese constit%tional criteria t$e ascertainment b' Congress o( t$e areas t$at s$are common attrib%tes is ,it$in t$e e4cl%sive realm o( t$e legislat%reHs !iscretion. #n' revie, o( t$is ascertainment ,o%l! $ave to go into t$e ,is!om o( t$e la,. 2$is t$e Co%rt cannot !o ,it$o%t !oing violence to t$e se&aration o( governmental &o,ers. 6ON ot$er nonDM%slim areas in Min!anao s$o%l! li+e,ise be covere!. He arg%es t$at since t$e Organic #ct covers several nonD M%slim areas its sco&e s$o%l! be (%rt$er broa!ene! to incl%!e t$e rest o( t$e nonDM%slim areas in Min!anao in or!er (or t$e ot$er nonDM%slim areas !enies sai! areas e.%al &rotection o( t$e la, an! t$ere(ore is violative o( t$e Constit%tion. =etitionerHs contention r%ns co%nter to t$e ver' same constit%tional &rovision $e $a! earlier invo+e!. #n' !etermination b' Congress o( ,$at areas in Min!anao s$o%l! com&romise t$e a%tonomo%s region ta+ing into acco%nt s$are! $istorical an! c%lt%ral $eritage economic an! social str%ct%res an! ot$er relevant c$aracteristics ,o%l! necessaril' carr' ,it$ it t$e e4cl%sion o( ot$er areas. #s earlier state! s%c$ !etermination b' Congress o( ,$ic$ areas s$o%l! be covere! b' t$e organic act (or t$e a%tonomo%s region constit%tes a recogniBe! legislative &rerogative ,$ose ,is!om ma' not be in.%ire! into b' t$is Co%rt. Moreover e.%al &rotection &ermits o( reasonable classi(ication. 2$e Co%rt r%le! t$at once class ma' be treate! !i((erentl' (rom anot$er ,$ere t$e gro%&ings are base! on reasonable an! real !istinctions. 2$e g%arantee o( e.%al &rotection is t$%s not in(ringe! in t$is case t$e classi(ication $aving been ma!e b' Congress on t$e basis o( s%bstantial !istinctions as set (ort$ b' t$e Constit%tion itsel(. 6ON -# G710 violates t$e constit%tional g%arantee on (ree e4ercise o( religion. 2$e ob9ection centers on a &rovision in t$e Organic #ct ,$ic$ man!ates t$at s$o%l! t$ere be an' con(lict bet,een t$e M%slim Co!e U=.D. No. 1581V an! t$e 2ribal Co!e ;still be enacte!< on t$e one $a! an! t$e national la, on t$e ot$er $an! t$e )$ariHa$ co%rts create! %n!er t$e same #ct s$o%l! a&&l' national la,. =etitioners maintain t$at t$e islamic la, ;)$ariHa$< is !erive! (rom t$e Moran ,$ic$ ma+es it &art o( !ivine la,. 2$%s it ma' not be s%b9ecte! to an' "manDma!e" national la,. =etitioner #bbas s%&&orts t$is ob9ection b' en%merating &ossible instances o( con(lict bet,een &rovisions o( t$e M%slim Co!e an! national la, ,$erein an a&&lication o( national la, mig$t be o((ensive to a M%slimHs religio%s convictions. #s ens$rine! in t$e Constit%tion 9%!icial &o,er incl%!es t$e !%t' to settle act%al controversies involving rig$ts ,$ic$ are legall' !eman!able an! en(orceable. *n t$e &resent case no act%al controvers' bet,een real litigants e4ists. 2$ere are no con(licting claims involving t$e a&&lication o( national la, res%lting in an allege! violation o( religio%s (ree!om. 2$is being so t$e Co%rt in t$is case ma' not be calle! %&on to resolve ,$at is merel' a &erceive! &otential con(lict bet,een t$e &rovisions t$e M%slim Co!e an! national la,. 6ON -# G710 grants t$e =resi!ent t$e &o,er to merge regions. 6$at is re(erre! to in -.#. No. G710 is t$e merger o( a!ministrative regions i.e. -egions * to J** an! t$e National Ca&ital -egion ,$ic$ are mere gro%&ings o( contig%o%s &rovinces (or a!ministrative &%r&oses #!ministrative regions are not territorial an! &olitical s%b!ivisions li+e &rovinces cities m%nici&alities an! baranga's. 6$ile t$e &o,er to merge a!ministrative regions is not e4&ressl' &rovi!e! (or in t$e Constit%tion it is a &o,er ,$ic$ $as tra!itionall' been lo!ge! ,it$ t$e =resi!ent to (acilitate t$e e4ercise o( t$e &o,er o( general s%&ervision over local governments Usee #rt. J sec. 0 o( t$e Constit%tionV. 2$ere is no con(lict bet,een t$e &o,er o( t$e =resi!ent to merge a!ministrative regions ,it$ t$e constit%tional &rovision re.%iring a &lebiscite in t$e merger o( local government %nits beca%se t$e re.%irement o( a &lebiscite in a merger e4&ressl' a&&lies onl' to &rovinces cities m%nici&alities or baranga's not to a!ministrative regions. 6ON &rovisions in t$e Organic #ct ,$ic$ create an Oversig$t Committee to s%&ervise t$e trans(er to t$e a%tonomo%s region o( t$e &o,ers a&&ro&riations an!
/.
/.
/.
/.
1C5

&ro&erties veste! %&on t$e regional government b' t$e organic #ct are %nconstit%tional beca%se ,$ile t$e Constit%tion states t$at t$e creation o( t$e a%tonomo%s region s$all ta+e e((ect %&on a&&roval in a &lebiscite t$e re.%irement o( organiBing an Oversig$t committee tas+e! ,it$ s%&ervising t$e trans(er o( &o,ers an! &ro&erties to t$e regional government ,o%l! in e((ect !ela' t$e creation o( t$e a%tonomo%s region. @n!er t$e constit%tion t$e creation o( t$e a%tonomo%s region $inges onl' on t$e res%lt o( t$e &lebiscite. i( t$e Organic #ct is a&&rove! b' ma9orit' o( t$e votes cast b' constit%ent %nits in t$e sc$e!%le! &lebiscite t$e creation o( t$e a%tonomo%s region imme!iatel' ta+es e((ect. 2$e .%estione! &rovisions in -.#. No. G710 re.%iring an oversig$t Committee to s%&ervise t$e trans(er !o not &rovi!e (or a !i((erent !ate o( e((ectivit'. M%c$ less ,o%l! t$e organiBation o( t$e Oversig$t Committee ca%se an im&e!iment to t$e o&eration o( t$e Organic #ct (or s%c$ is evi!entl' aime! at e((ecting a smoot$ transition &erio! (or t$e regional government. 2$e constit%tional ob9ection on t$is &oint t$%s cannot be s%staine! as t$ere is no bases t$ere(or. Pan i v. CA Facts: Macac%a in $er ca&acit' as -egional Director an! as )ecretar' o( t$e De&artment o( Healt$ o( t$e #%tonomo%s -egion in M%slim Min!anao iss%e! a Memoran!%m !esignating =an!i ,$o ,as t$en DOHD#-MM #ssistant -egional )ecretar' as O((icerDinD C$arge o( t$e *ntegrate! =rovincial Healt$ O((iceD#mai =a+&a+ General Hos&ital ;*=HOD#=GH< Lanao !el )%r. *n t$e same Memoran!%m Macac%a !etaile! Dr. Mamasao )ani t$en t$e &rovincial $ealt$ o((icer o( t$e *=HOD#=GH Lanao !el )%r to t$e DOHD#-MM -egional O((ice in Cotabato Cit'. Lanao !el )%r =rovincial Governor Ma$i! M. M%tilan iss%e! O((ice Or!er No. 57 !esignating )aber also as O((icerDinDC$arge o( t$e *=HOD#=GH Lanao !el )%r. )ani (ile! a com&laint ,it$ t$e -egional 2rial Co%rt o( Lanao !el )%r Branc$ 15 Mara,i Cit' c$allenging t$e #%g%st 8 1881 Memoran!%m trans(erring $im to t$e DOHD#-MM -egional O((ice in Cotabato Cit' alleging t$at $e is t$e $ol!er o( a &ermanent a&&ointment as &rovincial $ealt$ o((icer o( t$e *=HOD #=GH Lanao !el )%r. )aber (ile! ,it$ t$e Co%rt o( #&&eals a &etition (or .%o ,arranto ,it$ &ra'er (or &reliminar' in9%nction claiming t$at $e is t$e la,(%ll' !esignate! O((icerDinDC$arge o( t$e *=HOD#=GH Lanao !el )%r. =resi!ent -amos iss%e! 34ec%tive Or!er No. 111 trans(erring t$e &o,ers an! (%nctions o( t$e De&artment o( Healt$ in t$e region to t$e -egional Government o( t$e #-MM. On November G 1881 Macac%a again in $er ca&acit' as DOHD#-MM )ecretar'DDesignate iss%e! a Memoran!%m reiterating =an!i>s !esignation as O((icerDinDC$arge o( t$e *=HOD#=GH Lanao !el )%r as ,ell as )ani>s !etail to t$e -egional O((ice o( t$e DOHD#-MM in Cotabato Cit' . C#: )aber is t$e la,(%ll' !esignate! O((icerDinD C$arge o( t$e *=HOD#=GH Lanao !el )%r an! t$at Governor Ma$i! M%tilan $as t$e &o,er an! a%t$orit' to a&&oint t$e &rovincial $ealt$ o((icer. C# maintaine! t$at t$e Organic #ct o( 1888 an! t$e #-MM Local Co!e co%l! not &revail over t$e LGC. C# inter&rete! )ection 0C7 ;b< an! ;!< o( t$e #-MM Local Co!e to mean t$at it is t$e #-MM -egional Governor an! not t$e =rovincial Governor ,$o e4ercises a recommen!ator' &rerogative in t$e a&&ointment o( t$e &rovincial $ealt$ o((icer. *ss%es: 1. 6ON an inc%mbent &rovincial $ealt$ o((icer o( Lanao !el )%r can be assigne! to anot$er &rovince an! i( so ,$o can or!er s%c$ assignment. /. 6$o can !esignate t$e O((icerDinDC$arge in t$e &rovincial $ealt$ o((ice o( Lanao !el )%r D t$e =rovincial Governor or t$e #-MM )ecretar' o( Healt$T 1. 6$o is em&o,ere! to a&&oint t$e &rovincial $ealt$ o((icer o( Lanao !el )%r D t$e =rovincial Governor t$e -egional Governor or t$e #-MM )ecretar' o( Healt$T First =erio!: =rior to t$e Organic #ct o( 1888 2$e &rovincial $ealt$ o((ice ,as an agenc' o( t$e Ministr' o( Healt$ an! t$e Minister o( Healt$ ,as t$e a&&ointing &o,er o( &rovincial $ealt$ o((icers. )econ! =erio!: #(ter t$e Organic #ct o( 1888 *t ,as not %ntil October /8 1881 ,$en t$en =resi!ent Fi!el K. -amos iss%e! 34ec%tive Or!er No. 111 t$at t$e regional o((ices o( t$e De&artment o( Healt$ in t$e #-MM ,ere &lace! %n!er t$e s%&ervision an! control o( t$e -egional Government. 34ec%tive Or!er No. 111 ,as t$e o&erative act t$at act%all' trans(erre! t$e &o,ers an! (%nctions o( t$e De&artment o( Healt$ toget$er ,it$ its regional &ersonnel
1C1

e.%i&ment &ro&erties an! b%!gets to t$e -egional Government. 2$%s %ntil t$e e((ectivit' o( 34ec%tive Or!er No. 111 t$e )ecretar' o( Healt$ o( t$e National Government contin%e! to a&&oint &rovincial $ealt$ o((icers in t$e #-MM ,it$ t$e a%t$orit' to assign a &rovincial $ealt$ o((icer to an' &rovince ,it$in t$e region. 2$is ,as t$e state o( t$e la, a(ter t$e &assage o( t$e Organic #ct o( 1888 %ntil t$e e((ectivit' o( 34ec%tive Or!er No. 111. 2$ir! =erio!: #(ter t$e LGC o( 1881 @nli+e t$e 1880 LG@ Co!e t$e 1881 LG@ Co!e ma!e (or t$e (irst time t$e &rovincial $ealt$ o((icers one o( t$e o((icials o( t$e &rovincial government to be a&&ointe! b' t$e &rovincial governor i( $is salar' came mainl' (rom &rovincial (%n!s. 3ven a(ter t$e &assage o( t$e 1881 LG@ Co!e t$e )ecretar' o( Healt$ contin%e! to be t$e a&&ointing &o,er o( &rovincial $ealt$ o((icers ,$o remaine! national government o((icials. 2$e )ecretar' o( Healt$ also contin%e! to e4ercise t$e a%t$orit' to assign &rovincial $ealt$ o((icers to an' &rovince ,it$in t$e region. 2$is sit%ation $o,ever ,as onl' tem&orar' arising (rom t$e nee! (or a &$ase! trans(er o( t$e &ersonnel e.%i&ment &ro&erties an! b%!gets o( t$e De&artment o( Healt$ in t$e #-MM to t$e -egional Government &%rs%ant to )ection 0 #rticle J*J o( t$e Organic #ct o( 1888. On October /8 1881 34ec%tive Or!er No. 111 ,as iss%e! (inall' trans(erring t$e &o,ers an! (%nctions o( t$e De&artment o( Healt$ in t$e a%tonomo%s region to t$e -egional Government. 2$e !evolve! &o,ers %n!er t$e Organic #ct o( 1888 as im&lemente! b' 34ec%tive Or!er No. 111 incl%!e! t$e &o,er o( s%&ervision an! control over &rovincial $ealt$ o((icers as ,ell as t$e &o,er to a&&oint &rovincial $ealt$ o((icers. 2$e &o,er o( s%&ervision an! control &revio%sl' e4ercise! b' t$e )ecretar' o( Healt$ carrie! ,it$ it t$e a%t$orit' to assign &rovincial $ealt$ o((icers to an' &rovince ,it$in t$e region &%rs%ant to )ection 17 o( 34ec%tive Or!er No. 118. #ssignment ,it$in a region o( &ersonnel a&&ointe! to a region is an a!ministrative matter e4ercise! b' t$e $ea! o( o((ice ,$o is veste! ,it$ t$e &o,er o( s%&ervision an! control over t$e o((ice.
@&on t$e e((ectivit' o( 34ec%tive Or!er No. 111 t$e

a!ministrative a%t$orit' o( t$e )ecretar' o( Healt$ to assign &rovincial $ealt$ o((icers to an' &rovince ,it$in a region ,as trans(erre! to t$e #-MM )ecretar' o( Healt$ as t$e regional co%nter&art o( t$e national )ecretar' o( Healt$. 2$is trans(er o( a!ministrative a%t$orit' to t$e -egional )ecretar' ,as essential to ins%re t$e contin%ation o( vital $ealt$ services to resi!ents in t$e #-MM. On t$e ot$er $an! t$e &o,er to a&&oint &rovincial $ealt$ o((icers &revio%sl' con(erre! b' la, on t$e )ecretar' o( Healt$ ,as !evolve! to t$e -egional Governor. 2$e &o,er to a&&oint &rovincial $ealt$ o((icers is one t$at t$e -egional #ssembl' co%l! t$%s grant b' la, to t$e -egional )ecretar' o( Healt$. Ho,ever t$e -egional #ssembl' $as not enacte! a la, a%t$oriBing t$e -egional )ecretar' o( Healt$ to a&&oint &rovincial $ealt$ o((icers. )ince t$e &o,er to a&&oint m%st be e4&ressl' con(erre! b' la, an! cannot be im&lie! (rom t$e &o,er o( s%&ervision an! control t$is r%le! o%t t$e -egional )ecretar' o( Healt$ as t$e a&&ointing &o,er o( &rovincial $ealt$ o((icers. )igni(icantl' t$e &o,er to a&&oint &rovincial $ealt$ o((icers is not one o( t$e &o,ers trans(erre! to t$e -egional )ecretar' o( Healt$ %n!er 34ec%tive Or!er No. 111. 2$ere co%l! be no ga& or lac%na in t$e !evol%tion o( &o,ers (rom t$e National Government to t$e -egional Government beca%se t$e e4ercise o( t$ese &o,ers ,as essential to t$e maintenance o( basic services (or t$e general ,el(are. =erio!: #(ter t$e #-MM Local Co!e @n!er t$e #-MM Local Co!e t$e &rovincial $ealt$ o((icer in t$e #-MM &revio%sl' a regional o((icial $as also become a &rovincial government o((icial catc$ing %& ,it$ t$e stat%s o( &rovincial $ealt$ o((icers o%tsi!e o( t$e #-MM. 2$e -egional Governor a&&oints t$e &rovincial $ealt$ o((icer (rom a list o( t$ree recommen!ees o( t$e =rovincial Governor. 2$e #-MM Local Co!e &rovi!es t$at t$e salar' o( t$e &rovincial $ealt$ o((icer s$all be &ai! (rom regional (%n!s. 2$e #-MM Local Co!e also states t$at i( t$e salar' o( t$e &rovincial $ealt$ o((icer comes mainl' (rom &rovincial (%n!s t$e =rovincial Governor is t$e a&&ointing &o,er. 2$e &o,er o( t$e -egional Governor to a&&oint &rovincial o((icials a&&lies onl' to &rovincial o((icials "&ai! b' regional (%n!s."
Fo%rt$
1C/

)ection 0C8 o( t$e #-MM Local Co!e vests in t$e =rovincial Governor t$e &o,er to e4ercise s%&ervision an! control over all &rovincial government o((icials. 2$e conversion o( t$e &rovincial $ealt$ o((icer (rom a regional government o((icial to a &rovincial government o((icial %n!er )ection 0C7 o( t$e #-MM Local Co!e &lace! t$e &rovincial $ealt$ o((icer %n!er t$e s%&ervision an! control o( t$e =rovincial Governor. Conse.%entl' ,it$ t$e &assage o( t$e #-MM Local Co!e t$e -egional )ecretar' o( Healt$ lost t$e a%t$orit' to assign &rovincial $ealt$ o((icers to ot$er &rovinces ,it$in t$e region. 2$e state o( t$e la, a(ter t$e enactment o( t$e #-MM Local Co!e became more (avorable to =rovincial Governors at least ,it$ res&ect to t$e a&&ointment an! assignment o( &rovincial $ealt$ o((icers. 6$ile be(ore t$e a&&ointment o( &rovincial $ealt$ o((icers ,as solel' t$e &rerogative o( t$e -egional Governor no, a =rovincial Governor $as t$e &o,er to recommen! t$ree nominees. 2$e -egional Governor can a&&oint onl' (rom among t$e t$ree nominees o( t$e =rovincial Governor even t$o%g$ t$e salar' o( t$e &rovincial $ealt$ o((icer comes (rom regional (%n!s. Li+e,ise ,$ile be(ore t$e -egional )ecretar' o( Healt$ co%l! assign &rovincial $ealt$ o((icers to ot$er &rovinces ,it$in t$e region t$is a%t$orit' o( t$e -egional )ecretar' cease! to e4ist. )ince a &rovincial $ealt$ o((icer ,as no, a&&ointe! to a s&eci(ic &rovince $e co%l! no longer be assigne! to anot$er &rovince ,it$o%t $is consent. Moreover t$e =rovincial Governor no, e4ercises s%&ervision an! control over t$e &rovincial $ealt$ o((icer ,$o $as become a &rovincial government o((icial. Finall' i( t$e &rovincial government ass%mes &a'ment o( t$e salar' o( t$e &rovincial $ealt$ o((icer t$en t$e =rovincial Governor becomes t$e a&&ointing &o,er o( s%c$ &rovincial o((icial. Fi(t$ =erio!: 2$e Organic #ct o( /551 2$e &assage o( t$e Organic #ct o( /551 means t$at t$e &o,ers an! (%nctions o( a =rovincial Governor %n!er t$e 1881 LG@ Co!e are no, en9o'e! as a minim%m b' a =rovincial Governor in t$e #-MM. 2$%s t$e =rovincial Governor a&&oints t$e &rovincial $ealt$ o((icer i( t$e latter>s salar' comes (rom &rovincial (%n!s. *( t$e &rovincial $ealt$ o((icer>s salar' comes mainl' (rom regional (%n!s t$en t$e #-MM Local Co!e a&&lies in ,$ic$ case t$e -egional Governor is t$e a&&ointing &o,er b%t $e m%st a&&oint onl' (rom among t$e t$ree nominees o( t$e =rovincial Governor. Moreover t$e =rovincial Governor e4ercises s%&ervision an! control over t$e &rovincial $ealt$ o((icer beca%se t$e #-MM Local Co!e $as classi(ie! $im as a &rovincial government o((icial. 2$is is no, t$e &resent state o( t$e la, on t$e a&&ointment o( &rovincial $ealt$ o((icers in t$e #-MM.
-e: )aber: Lanao !el )%r =rovincial Governor Ma$i! M.

M%tilan !esignate! )aber as O((icerDinDC$arge o( t$e *=HOD #=GH Lanao !el )%r on )e&tember 1C 1881. On t$is !ate t$e &rovincial $ealt$ o((icer o( Lanao !el )%r ,as still a national government o((icial &ai! entirel' (rom national (%n!s. 2$e &rovincial $ealt$ o((icer ,as still a&&ointe! b' t$e national )ecretar' o( Healt$ to a region an! not to a &rovince. 2$e )ecretar' o( Healt$ e4ercise! s%&ervision an! control over t$e &rovincial $ealt$ o((icer. 2$e )ecretar' o( Healt$ ,as also t$e o((icial a%t$oriBe! b' la, to assign t$e &rovincial $ealt$ o((icer to an' &rovince ,it$in t$e region. *n!is&%tabl' on )e&tember 1C 1881 =rovincial Governor M%tilan $a! no &o,er to !esignate )aber as O((icerDinD C$arge o( *=HOD#=GH Lanao !el )%r. Conse.%entl' t$e !esignation o( )aber as s%c$ O((icerDinDC$arge is voi!. 2$e Co%rt o( #&&eals> reliance on )ection 078 o( t$e 1881 LG@ Co!e as =rovincial Governor M%tilan>s a%t$orit' to a&&oint )aber is mis&lace!. )ection 078 o( t$e 1881 LG@ Co!e ,$ic$ &rovi!es t$at "U2V$e a&&ointment o( a $ealt$ o((icer s$all be man!ator' (or &rovincial cit' an! m%nici&al governments " is not a grant o( &o,er to governors an! ma'ors to a&&oint local $ealt$ o((icers. *t is sim&l' a !irective t$at t$ose em&o,ere! to a&&oint local $ealt$ o((icers are man!ate! to !o so. *n s$ort t$e a&&ointment o( local $ealt$ o((icers being essential (or &%blic services is a man!ator' obligation on t$e &art o( t$ose veste! b' la, ,it$ t$e &o,er to a&&oint t$em. -e: )ani: )ani ,as a&&ointe! &rovincial $ealt$ o((icer b' t$en )ecretar' o( Healt$ #l(re!o -.#. BengBon on 7an%ar' 1 1888. )ani ,as a&&ointe! &rovincial $ealt$ o((icer in -egion J** since at t$at time 34ec%tive Or!er No. 118 t$e c$arter o( t$e De&artment o( Healt$ e4&ressl' state! t$at &rovincial $ealt$ o((icers ,ere to be a&&ointe! to a region. 2$e )ecretar' o( Healt$ %&on recommen!ation o( t$e -egional
1C1

Director co%l! assign &rovincial $ealt$ o((icers to an' &rovince ,it$in t$e region. Conse.%entl' )ani cannot claim an' sec%rit' o( ten%re as &rovincial $ealt$ o((icer o( Lanao !el )%r beca%se $e ,as never a&&ointe! to t$at o((ice. Macac%a in $er ca&acit' as -egional Director an! #-MM )ecretar' o( Healt$ !etaile! )ani to t$e DOHD#-MM -egional O((ice in Cotabato Cit' on #%g%st 8 1881. #s o( t$at !ate t$e &o,ers an! (%nctions o( t$e De&artment o( Healt$ ,ere not 'et trans(erre! to t$e -egional Government an! t$e )ecretar' o( Healt$ o( t$e National Government still e4ercise! t$e &o,er to assign t$e &rovincial $ealt$ o((icers in t$e #-MM. Conse.%entl' t$e #%g%st 8 1881 !irective o( Macac%a !etailing or assigning )ani to t$e -egional O((ice in Cotabato Cit' is voi!. 2$e secon! !etail or assignment o( )ani to t$e -egional O((ice in Cotabato iss%e! on November G 1881 is ,it$in t$e a%t$orit' o( Macac%a as -egional )ecretar' o( Healt$. 2$%s t$e secon! !etail o( )ani is vali!. -e: =an!i: 2$e !esignation !ate! #%g%st 8 1881 is voi! since t$e -egional )ecretar' at t$at time !i! not 'et e4ercise s%&ervision an! control over t$e &rovincial $ealt$ o((ices o( t$e #-MM. Ho,ever t$e !esignation o( =an!i on November G 1881 is vali! since at t$at time 34ec%tive Or!er No. 111 $a! alrea!' been iss%e! vesting in t$e -egional )ecretar' o( Healt$ s%&ervision an! control over all (%nctions an! activities o( t$e De&artment o( Healt$ in t$e #-MM. 2$e !esignation o( =an!i $o,ever ,$ile vali! is onl' tem&orar' in nat%re goo! %ntil a ne, !esignation or a &ermanent a&&ointment is ma!e. #s -egional )ecretar' o( Healt$ Macac%a ,as as o( November G 1881 t$e o((icial veste! b' la, to e4ercise s%&ervision an! control over all &rovincial $ealt$ o((ices in t$e #-MM. 2$e -egional )ecretar' b' virt%e o( 34ec%tive Or!er No. 111 ass%me! t$e a!ministrative &o,ers an! (%nctions o( t$e )ecretar' o( Healt$ o( t$e National Government ,it$ res&ect to &rovincial $ealt$ o((ices ,it$in t$e #-MM. 2$e o((icial e4ercising s%&ervision an! control over an o((ice $as t$e a!ministrative a%t$orit' to !esignate in t$e interest o( &%blic service an O((icerDinDC$arge i( t$e o((ice becomes vacant. Macac%a t$ere(ore $a! t$e a%t$orit' on November G 1881 to !esignate an O((icerDinD C$arge in t$e &rovincial $ealt$ o((ice o( Lanao !el )%r &en!ing t$e a&&ointment o( t$e &ermanent &rovincial $ealt$ o((icer. #(ter t$e e((ectivit' o( t$e #-MM Local Co!e t$e -egional )ecretar' o( Healt$ lost t$e a%t$orit' to ma+e s%c$ a !esignation. @n!er t$e #-MM Local Co!e t$e &rovincial $ealt$ o((icer became (or t$e (irst an o((icial o( t$e &rovincial government even t$o%g$ $e is a&&ointe! b' t$e -egional Governor an! !ra,s $is salar' (rom regional (%n!s. 2$e #-MM Local Co!e vests in t$e =rovincial Governor t$e &o,er to "e4ercise general s%&ervision an! control over all &rograms &ro9ects services an! activities o( t$e &rovincial government." @&on t$e e((ectivit' o( t$e #-MM Local Co!e t$e &o,er o( s%&ervision an! control over t$e &rovincial $ealt$ o((icer &asse! (rom t$e -egional )ecretar' to t$e =rovincial Governor. From t$en on t$e =rovincial Governor began to e4ercise t$e a!ministrative a%t$orit' to !esignate an O((icerDinDC$arge in t$e &rovincial $ealt$ o((ice &en!ing t$e a&&ointment o( a &ermanent &rovincial $ealt$ o((icer.
Or illo v. COM%L%C Facts: 2$e &eo&le o( t$e &rovinces o( Beng%et Mo%ntain =rovince *(%gao #bra an! Malinga #&a'ao an! t$e cit' o( Bag%io cast t$eir votes in a &lebiscite $el! &%rs%ant to -# G7GG. 2$e COM3L3C res%lts s$o,e! t$at t$e creation o( t$e -egion ,as a&&rove! onl' b' a ma9orit' o( C 888 votes in onl' t$e *(%gao =rovince an! ,as over,$elmingl' re9ecte! b' 108 G7G votes in t$e rest o( t$e &rovinces an! cit' abovementione!. )ec o( 7%stice: consi!ering t$e &roviso t$at onl' t$e &rovinces an! cit' voting (avorabl' s$all be incl%!e! in t$e C#- t$e &rovince o( *(%gao being t$e onl' &rovince ,$ic$ vote! (avorabl' legall' constit%tes t$e C#-. #s a res%lt o( t$is Congress enacte! -# G8G1 ,$ic$ set t$e elections in t$e C#-. Or!illo et al t$en (ile! a &etition ,it$ t$e COM3L3C to !eclare t$e nonDrati(ication o( t$e Organic #ct (or t$e -egion. 2$e &resi!ent iss%e! #O 1G5 !eclaring t$at t$e Cor!illera 34ec%tive Boar! an! Cor!illera -egional #ssembl' an! ot$er o((ices create! %n!er 3O//5 are abolis$e! in vie, o( t$e rati(ication o( t$e Organic #ct. 2$e &etitioners maintain t$at t$ere can be no vali! C#- as t$e
1C0

Constit%tion an! -# G7GG re.%ire t$at t$e sai! region be com&ose! o( more t$an one constit%ent %nit. 2$e' &ra' t$at t$e co%rt !eclare COM3L3C -es. No. //C8 #O 1G5 an! -#G8G1 as n%ll an! voi! an! restrain t$e res&on!ents (rom im&lementing t$e same. 2$e' also &ra' t$at it !eclare 3O //5 constit%ting t$e C3B an! t$e C-# an! ot$er o((ices to be still in (orce an! e((ect %ntil anot$er organic la, (or t$e #%tonomo%s -egion s$all $ave been enacte! an! !%l' rati(ie!. *ss%e: 6ON t$e &rovince o( *(%gao being t$e onl' &rovince ,$ic$ vote! (avorabl' (or t$e creation o( t$e C#- can alone legall' an! vali!l' constit%te s%c$ region. NO. #rt. J )ec. 1C o( 1887 Constit%tion: 2$ere s$all be create! a%tonomo%s regions in M%slim Min!anao an! in t$e Cor!illera consisting o( &rovinces cities m%nici&alities an! geogra&$ical areas s$aring common an! !istinctive $istorical an! c%lt%ral $eritage economic an! social str%ct%res an! ot$er relevant c$aracteristics ,it$in t$e (rame,or+ o( t$is Constit%tion an! t$e national sovereignt' as ,ell as territorial integrit' o( t$e -e&%blic o( t$e =$ili&&ines. 2$e term EregionF %se! in its or!inar' sense means t,o or more &rovinces. 2$is is s%&&orte! b' t$e (act t$at t$e 11 regions into ,$ic$ t$e =$ili&&ines is !ivi!e! (or a!ministrative &%r&oses are gro%&ings o( contig%o%s &rovinces. *(%gao is a &rovince b' itsel(. 2o become &art o( a region it m%st 9oin ot$er &rovinces cities m%nici&alities an! geogra&$ical areas. -# G7GG s$o,s t$at Congress never inten!e! t$at a single &rovince ma' constit%te t$e a%tonomo%s region. Ot$er,ise ,e ,o%l! be (ace! ,it$ t$e abs%r! sit%ation o( $aving t,o sets o( &rovincial o((icials an! anot$er set o( regional o((icials e4ercising t$eir e4ec%tive an! legislative &o,ers over e4actl' t$e same small area. )%c$ ,ill res%lt in an a,+,ar! &re!icament ,$ere t$ere ,ill be t,o legislative bo!ies: t$e Cor!illera #ssembl' an! t$e )angg%niang =anlala,igan e4ercising t$eir legislative &o,ers over t$e &rovince o( *(%gao. -# G7GG &rovi!es (or a -egional =lanning an! Develo&mental Boar! ,$ic$ $as a &rovincial co%nter&art t$e =rovincial =lanning an! Develo&mental Coor!inator. *( it ta+es onl' one &erson in t$e &rovincial level to &er(orm s%c$ (%nctions ,$ile it ta+es an entire boar! to &er(orm t$e same in t$e regional level it co%l! onl' mean t$at a larger area m%st be covere! at t$e regional level. 2$e la, also &rovi!es an allocation (or 15M=$& (or its initial organiBational re.%irements. )%c$ cannot be constr%e! as (%n!ing onl' a lone an! small &rovince. Moreover t$e &rovince o( *(%gao ma+es %& onl' 11Y o( t$e total &o&%lation o( t$e areas ,$ic$ ,ere en%merate! in t$e la,. 2$is case m%st be !isting%is$e! (rom t$e #bbas case ,$ic$ lai! !o,n t$e r%le on t$e meaning o( ma9orit': ,$at is re.%ire! b' t$e Constit%tion is a sim&le ma9orit' o( votes a&&roving t$e Organic #ct in in!ivi!%al constit%ent %nits an! not a !o%ble ma9orit' o( t$e votes in all constit%ent %nits &%t toget$er as ,ell as t$e in!ivi!%al constit%ent %nits. 2$ere is not$ing in t$e #bbas case t$at !eals ,it$ t$e iss%e on ,$et$er an a%tonomo%s region co%l! e4ist !es&ite t$e (act t$at onl' one &rovince or cit' is to constit%te it. Cor illera Broa Coalition v. COA /supra1
MM*A v. Bel;Air /supra1 MM*A v. Garin Facts: Dante O. Garin ,as iss%e! a tra((ic violation recei&t ;2K-< (or &ar+ing illegall' along Gan!ara )treet Binon!o Manila. His !riverHs license ,as also con(iscate!. )$ortl' be(ore t$e e4&iration o( t$e 2K-Hs vali!it' t$e Garin a!!resse! a letter to t$en MMD# C$airman Oreta re.%esting t$e ret%rn o( $is !riverHs license an! e4&ressing $is &re(erence (or $is case to be (ile! in co%rt. -eceiving no imme!iate re&l' Garin (ile! t$e original com&laint ,it$ a&&lication (or &reliminar' in9%nction conten!ing t$at in t$e absence o( an' im&lementing r%les an! reg%lations )ec. C;(< o( -e&. #ct No. 78/0 grants t$e MMD# %nbri!le! !iscretion to !e&rive erring motorists o( t$eir licenses &reDem&ting a 9%!icial !etermination o( t$e vali!it' o( t$e !e&rivation t$ereb' violating t$e !%e &rocess cla%se o( t$e Constit%tion. 2$e res&on!ent (%rt$er conten!e! t$at t$e &rovision violates t$e constit%tional &ro$ibition against %n!%e !elegation o( legislative a%t$orit' allo,ing as it !oes t$e MMD# to (i4 an! im&ose %ns&eci(ie! X an! t$ere(ore %nlimite! D (ines an! ot$er &enalties on erring motorists. *n s%&&ort o( $is a&&lication (or a ,rit o( &reliminar' in9%nction Garin allege! t$at $e s%((ere! an!
1CC

contin%es to s%((er great an! irre&arable !amage beca%se o( t$e !e&rivation o( $is license an! t$at absent an' im&lementing r%les (rom t$e Metro Manila Co%ncil t$e 2K- an! t$e con(iscation o( $is license $ave no legal basis. For its &art t$e MMD# re&resente! b' t$e O((ice o( t$e )olicitor General &ointe! o%t t$at t$e &o,ers grante! to it b' )ec. C;(< o( -# 78/0 are limite! to t$e (i4ing collection an! im&osition o( (ines an! &enalties (or tra((ic violations ,$ic$ &o,ers are legislative an! e4ec%tive in nat%reA t$e 9%!iciar' retains t$e rig$t to !etermine t$e vali!it' o( t$e &enalt' im&ose!. *t (%rt$er arg%e! t$at t$e !octrine o( se&aration o( &o,ers !oes not &recl%!e "a!mi4t%re" o( t$e t$ree &o,ers o( government in a!ministrative agencies. 2$e MMD# also re(%te! GarinHs allegation t$at t$e Metro Manila Co%ncil t$e governing boar! an! &olic' ma+ing bo!' o( t$e &etitioner $as as 'et to (orm%late t$e im&lementing r%les (or )ec. C;(< o( -e&. #ct No. 78/0 an! !irecte! t$e co%rtHs attention to MMD# Memoran!%m Circ%lar No. 22D8CD551 !ate! 1C #&ril 188C. -es&on!ent Garin $o,ever .%estione! t$e vali!it' o( MMD# Memoran!%m Circ%lar No. 22D8CD551 as $e claims t$at it ,as &asse! b' t$e Metro Manila Co%ncil in t$e absence o( a .%or%m. -2C: iss%e! a tem&orar' restraining or!er e4ten!ing t$e vali!it' o( t$e 2K- as a tem&orar' !riverHs license (or t,ent' more !a's. # &reliminar' man!ator' in9%nction ,as grante! an! t$e MMD# ,as !irecte! to ret%rn t$e res&on!entHs !riverHs license. -2C !ecision: a. 2$ere ,as in!ee! no .%or%m in t$at First -eg%lar Meeting o( t$e MMD# Co%ncil $el! on Marc$ /1 188C $ence MMD# Memoran!%m Circ%lar No. 22D8CD551 a%t$oriBing con(iscation o( !riverHs licenses %&on iss%ance o( a 2Kis voi! ab initio. b. 2$e s%mmar' con(iscation o( a !riverHs license ,it$o%t (irst giving t$e !river an o&&ort%nit' to be $ear!A !e&riving $im o( a &ro&ert' rig$t ;!riverHs license< ,it$o%t D@3 =-OC3))A not (illing ;sic< in Co%rt t$e com&laint o( s%&&ose! tra((ic in(raction cannot be 9%sti(ie! b' an' legislation ;an! is< $ence %nconstit%tional. *ss%es: 1. 6ON a license to o&erate a motor ve$icle is a &rivilege t$at t$e state ma' ,it$$ol! in t$e e4ercise o( its &olice &o,er. :3). 2$e &etitioner correctl' &oints o%t t$at a license to o&erate a motor ve$icle is not a &ro&ert' rig$t b%t a &rivilege grante! b' t$e state ,$ic$ ma' be s%s&en!e! or revo+e! b' t$e state in t$e e4ercise o( its &olice &o,er in t$e interest o( t$e &%blic sa(et' an! ,el(are s%b9ect to t$e &roce!%ral !%e &rocess re.%irements.
)tate e4. -el. )%llivan: "t$e legislative &o,er to reg%late

travel over t$e $ig$,a's an! t$oro%g$(ares o( t$e state (or t$e general ,el(are is e4tensive. *t ma' be e4ercise! in an' reasonable manner to conserve t$e sa(et' o( travelers an! &e!estrians. )ince motor ve$icles are instr%ments o( &otential !anger t$eir registration an! t$e licensing o( t$eir o&erators $ave been re.%ire! almost (rom t$eir (irst a&&earance. 2$e rig$t to o&erate t$em in &%blic &laces is not a nat%ral an! %nrestraine! rig$t b%t a &rivilege s%b9ect to reasonable reg%lation %n!er t$e &olice &o,er in t$e interest o( t$e &%blic sa(et' an! ,el(are. 2$e &o,er to license im&orts (%rt$er &o,er to ,it$$ol! or to revo+e s%c$ license %&on noncom&liance ,it$ &rescribe! con!itions." Common,ealt$ v. F%n+: "#%tomobiles are ve$icles o( great s&ee! an! &o,er. 2$e %se o( t$em constit%tes an element o( !anger to &ersons an! &ro&ert' %&on t$e $ig$,a's. Care(%ll' o&erate! an a%tomobile is still a !angero%s instr%mentalit' b%t ,$en o&erate! b' careless or incom&etent &ersons it becomes an engine o( !estr%ction. 2$e Legislat%re in t$e e4ercise o( t$e &olice &o,er o( t$e common,ealt$ not onl' ma' b%t m%st &rescribe $o, an! b' ,$om motor ve$icles s$all be o&erate! on t$e $ig$,a's. One o( t$e &rimar' &%r&oses o( a s'stem o( general reg%lation o( t$e s%b9ect matter as $ere b' t$e Ke$icle Co!e is to ins%re t$e com&etenc' o( t$e o&erator o( motor ve$icles. )%c$ a general la, is mani(estl' !irecte! to t$e &romotion o( &%blic sa(et' an! is ,ell ,it$in t$e &olice &o,er." 2$e common t$rea! r%nning t$ro%g$ t$e cite! cases is t$at it is t$e legislat%re in t$e e4ercise o( &olice &o,er ,$ic$ $as t$e &o,er an! res&onsibilit' to reg%late $o, an! b' ,$om motor ve$icles ma' be o&erate! on t$e state $ig$,a's.
/. 6ON t$e MMD# is veste! ,it$ &olice &o,er. NO. Metro Manila Develo&ment #%t$orit' v. BelD#ir Killage
#ssociation *nc. ,e categoricall' state! t$at -e&. #ct No. 78/0 !oes not grant t$e MMD# ,it$ &olice &o,er let alone legislative &o,er an! t$at all its (%nctions are a!ministrative in nat%re. 2racing t$e legislative $istor' o( -# 78/0 creating t$e MMD# ,e concl%!e! t$at t$e MMD# is not a local government %nit or a &%blic cor&oration en!o,e!
1CG

,it$ legislative &o,er an! %nli+e its &re!ecessor t$e Metro Manila Commission it $as no &o,er to enact or!inances (or t$e ,el(are o( t$e comm%nit'. 2$%s in t$e absence o( an or!inance (rom t$e Cit' o( Ma+ati its o,n or!er to o&en t$e street ,as invali!. =olice &o,er as an in$erent attrib%te o( sovereignt' is t$e &o,er veste! b' t$e Constit%tion in t$e legislat%re to ma+e or!ain an! establis$ all manner o( ,$olesome an! reasonable la,s stat%tes an! or!inances eit$er ,it$ &enalties or ,it$o%t not re&%gnant to t$e Constit%tion as t$e' s$all 9%!ge to be (or t$e goo! an! ,el(are o( t$e common,ealt$ an! (or t$e s%b9ects o( t$e same. Having been lo!ge! &rimaril' in t$e National Legislat%re it cannot be e4ercise! b' an' gro%& or bo!' o( in!ivi!%als not &ossessing legislative &o,er. 2$e National Legislat%re $o,ever ma' !elegate t$is &o,er to t$e &resi!ent an! a!ministrative boar!s as ,ell as t$e la,ma+ing bo!ies o( m%nici&al cor&orations or local government %nits ;LG@s<. Once !elegate! t$e agents can e4ercise onl' s%c$ legislative &o,ers as are con(erre! on t$em b' t$e national la,ma+ing bo!'. Congress !elegate! &olice &o,er to t$e LG@s in LGC. # local government is a "&olitical s%b!ivision o( a nation or state ,$ic$ is constit%te! b' la, an! $as s%bstantial control o( local a((airs." Local government %nits are t$e &rovinces cities m%nici&alities an! baranga's ,$ic$ e4ercise &olice &o,er t$ro%g$ t$eir res&ective legislative bo!ies. Metro&olitan or Metro Manila is a bo!' com&ose! o( several local government %nits. 6it$ t$e &assage o( -e&. #ct No. 78/0 in 188C Metro&olitan Manila ,as !eclare! as a "s&ecial !evelo&ment an! a!ministrative region" an! t$e a!ministration o( "metroD,i!e" basic services a((ecting t$e region &lace! %n!er "a !evelo&ment a%t$orit'" re(erre! to as t$e MMD#. 2$%s: t$e &o,ers o( t$e MMD# are limite! to t$e (ollo,ing acts: (orm%lation coor!ination reg%lation im&lementation &re&aration management monitoring setting o( &olicies installation o( a s'stem an! a!ministration. 2$ere is no s'llable in -. #. No. 78/0 t$at grants t$e MMD# &olice &o,er let alone legislative &o,er. 3ven t$e Metro Manila Co%ncil $as not been !elegate! an' legislative &o,er. @nli+e t$e legislative bo!ies o( t$e local government %nits t$ere is no &rovision in -. #. No. 78/0 t$at em&o,ers t$e MMD# or its Co%ncil to "enact or!inances a&&rove resol%tions an! a&&ro&riate (%n!s (or t$e general ,el(are" o( t$e in$abitants o( Metro Manila. 2$e MMD# is as terme! in t$e c$arter itsel( a "!evelo&ment a%t$orit'." *t is an agenc' create! (or t$e &%r&ose o( la'ing !o,n &olicies an! coor!inating ,it$ t$e vario%s national government agencies &eo&leHs organiBations nonD governmental organiBations an! t$e &rivate sector (or t$e e((icient an! e4&e!itio%s !eliver' o( basic services in t$e vast metro&olitan area. Clearl' t$e MMD# is not a &olitical %nit o( government. 2$e &o,er !elegate! to t$e MMD# is t$at given to t$e Metro Manila Co%ncil to &rom%lgate a!ministrative r%les an! reg%lations in t$e im&lementation o( t$e MMD#Hs (%nctions. 2$ere is no grant o( a%t$orit' to enact or!inances an! reg%lations (or t$e general ,el(are o( t$e in$abitants o( t$e metro&olis. 6ON )ec. C;(< grants t$e MMD# ,it$ t$e !%t' to en(orce e4isting tra((ic r%les an! reg%lations. :3). )ection C o( -# 78/0 en%merates t$e "F%nctions an! =o,ers o( t$e Metro Manila Develo&ment #%t$orit'." 2$e conteste! cla%se in )ec. C;(< states t$at t$e &etitioner s$all "install an! a!minister a single tic+eting s'stem (i4 im&ose an! collect (ines an! &enalties (or all +in!s o( violations o( tra((ic r%les an! reg%lations ,$et$er moving or nonmoving in nat%re an! con(iscate an! s%s&en! or revo+e !riversH licenses in t$e en(orcement o( s%c$ tra((ic la,s an! reg%lations t$e &rovisions o( -# 011G an! =.D. No. 1G5C to t$e contrar' not,it$stan!ing " an! t$at ";(<or t$is &%r&ose t$e #%t$orit' s$all en(orce all tra((ic la,s an! reg%lations in Metro Manila t$ro%g$ its tra((ic o&eration center an! ma' !e&%tiBe members o( t$e =N= tra((ic en(orcers o( local government %nits !%l' license! sec%rit' g%ar!s or members o( nonD governmental organiBations to ,$om ma' be !elegate! certain a%t$orit' s%b9ect to s%c$ con!itions an! re.%irements as t$e #%t$orit' ma' im&ose." 2$%s ,$ere t$ere is a tra((ic la, or reg%lation vali!l' enacte! b' t$e legislat%re or t$ose agencies to ,$om legislative &o,ers $ave been !elegate! ;t$e Cit' o( Manila in t$is case< t$e &etitioner is not &recl%!e! X an! in (act is !%t'Dbo%n! X to con(iscate an! s%s&en! or revo+e !riversH licenses in t$e e4ercise o( its man!ate o( trans&ort an!
/.
1C7

tra((ic management as ,ell as t$e a!ministration an! im&lementation o( all tra((ic en(orcement o&erations tra((ic engineering services an! tra((ic e!%cation &rograms.
League o! Cities v. COM%L%C Facts: 11t$ Congress: 11 bills converting 11 m%nici&alities into cities ,ere enacte!. Ho,ever Congress !i! not act on bills converting /0 ot$er m%nici&alities into cities. 1/t$ Congress: -# 8558 ,$ic$ amen!e! )ec. 0C5 o( t$e LGC b' increasing t$e ann%al income re.%irement (or conversion o( a m%nici&alit' into a cit' (rom =/5 million to =155 million ,as enacte!. 2$e rationale (or t$e amen!ment ,as to restrain in t$e ,or!s o( )en. =imentel Et$e ma! r%s$F o( m%nici&alities to convert into cities solel' to sec%re a larger s$are in t$e *nternal -even%e #llotment !es&ite t$e (act t$at t$e' are inca&able o( (iscal in!e&en!ence. #(ter t$e e((ectivit' o( -# 8558 t$e Ho%se a!o&te! 7oint -esol%tion No. /8 ,$ic$ so%g$t to e4em&t (rom t$e =155 million income re.%irement in -# 8558 t$e /0 m%nici&alities ,$ose cit'$oo! bills ,ere not a&&rove! in t$e 11t$ Congress. Ho,ever t$e 1/t$ Congress en!e! ,it$o%t t$e )enate a&&roving 7oint -esol%tion No. /8. 11t$ Congress: 7- /8 ,as reDa!o&te! as 7- 1 an! ,as (or,ar!e! to t$e )enate (or a&&roval. Ho,ever t$e )enate again (aile! to a&&rove t$e 7oint -esol%tion. Follo,ing t$e a!vice o( )en.=imentel 1G m%nici&alities (ile! t$ro%g$ t$eir res&ective s&onsors in!ivi!%al cit'$oo! bills. 2$e 1G cit'$oo! bills containe! a common &rovision e4em&ting all t$e 1G m%nici&alities (rom t$e =155 million income re.%irement in -# 8558. On // December /55G t$e Ho%se o( -e&resentatives a&&rove! t$e cit'$oo! bills. 2$e )enate also a&&rove! t$e cit'$oo! bills in Febr%ar' /557 e4ce&t t$at o( Naga Ceb% ,$ic$ ,as &asse! on 7 7%ne /557. 2$e cit'$oo! bills la&se! into la, ,it$o%t t$e =resi!ent>s signat%re. 2$e Cit'$oo! La,s !irect
1C8

t$e COM3L3C to $ol! &lebiscites to !etermine ,$et$er t$e voters in eac$ res&on!ent m%nici&alit' a&&rove o( t$e conversion o( t$eir m%nici&alit' into a cit'. =etitioners (ile! t$e &resent &etitions to !eclare t$e Cit'$oo! La,s %nconstit%tional (or violation o( )ection 15 #rticle J o( t$e Constit%tion as ,ell as (or violation o( t$e e.%al &rotection cla%se. =etitioners also lament t$at t$e ,$olesale conversion o( m%nici&alities into cities ,ill re!%ce t$e s$are o( e4isting cities in t$e *nternal -even%e #llotment beca%se more cities ,ill s$are t$e same amo%nt o( internal reven%e set asi!e (or all cities %n!er )ection /8C o( t$e LGC. *ss%es: 1. 6ON -# 8558 violates t$e &rinci&le o( nonDretroactivit'. NO Congress &asse! t$e Cit'$oo! La,s long a(ter t$e e((ectivit' o( -# 8558. -# 8558 became e((ective on 15 7%ne /551 or !%ring t$e 11t$ Congress. 2$e 11t$ Congress &asse! in December /55G t$e cit'$oo! bills ,$ic$ became la, onl' in /557. 2$%s res&on!ent m%nici&alities cannot invo+e t$e &rinci&le o( nonDretroactivit' o( la,s. 2$is basic r%le $as no a&&lication beca%se -# 8558 an earlier la, to t$e Cit'$oo! La,s is not being a&&lie! retroactivel' b%t &ros&ectivel'. /. 6ON -# 8558 violates )ec 15 #rt J o( t$e Constit%tion. 2$e Constit%tion is clear. 2$e creation o( local government %nits m%st (ollo, t$e criteria establis$e! in t$e LGC an! not in an' ot$er la,. 2$ere is onl' one LGC. 2$e Constit%tion re.%ires Congress to sti&%late in t$e LGC all t$e criteria necessar' (or t$e creation o( a cit' incl%!ing t$e conversion o( a m%nici&alit' into a cit'. Congress cannot ,rite s%c$ criteria in an' ot$er la, li+e t$e Cit'$oo! La,s. 2$e criteria &rescribe! in t$e LGC govern e4cl%sivel' t$e creation o( a cit'. No ot$er la, not even t$e c$arter o( t$e cit' can govern s%c$ creation. 2$e clear intent o( t$e Constit%tion is to ins%re t$at t$e creation o( cities an! ot$er &olitical %nits m%st (ollo, t$e same %ni(orm nonD!iscriminator' criteria (o%n! solel' in t$e LGC. #n' !erogation or !eviation (rom t$e criteria &rescribe! in t$e LGC violates )ection 15 #rticle J o( t$e Constit%tion. -# 8558 amen!e! )ection 0C5 o( t$e LGC to increase t$e income re.%irement (rom =/5 million to =155 million (or t$e creation o( a cit'. 2$is too+ e((ect on 15 7%ne /551. Hence (rom t$at moment t$e LGC re.%ire! t$at an' m%nici&alit' !esiring to become a cit' m%st satis(' t$e =155 million income re.%irement. )ection 0C5 o( t$e LGC as amen!e! b' -# 8558 !oes not contain an' e4em&tion (rom t$is income re.%irement. *n enacting -# 8558 Congress !i! not grant an' e4em&tion to res&on!ent m%nici&alities even t$o%g$ t$eir cit'$oo! bills ,ere &en!ing in Congress ,$en Congress &asse! -# 8558. 2$e Cit'$oo! La,s all enacte! a(ter t$e e((ectivit' o( -# 8558 e4&licitl' e4em&t res&on!ent m%nici&alities (rom t$e increase! income re.%irement in )ection 0C5 o( t$e LGC as amen!e! b' -# 8558. )%c$ e4em&tion clearl' violates )ection 15 #rticle J o( t$e Constit%tion an! is t$%s &atentl' %nconstit%tional. 2o be vali! s%c$ e4em&tion m%st be ,ritten in t$e LGC an! not in an' ot$er la, incl%!ing t$e Cit'$oo! La,s. 2$ere can be no resort to e4trinsic ai!s S li+e !eliberations o( Congress S i( t$e lang%age o( t$e la, is &lain clear an! %nambig%o%s. Co%rts !etermine t$e intent o( t$e la, (rom t$e literal lang%age o( t$e la, ,it$in t$e la,>s (o%r corners. *( t$e lang%age o( t$e la, is &lain clear an! %nambig%o%s co%rts sim&l' a&&l' t$e la, accor!ing to its e4&ress terms. *( a literal a&&lication o( t$e la, res%lts in abs%r!it' im&ossibilit' or in9%stice t$en co%rts ma' resort to e4trinsic ai!s o( stat%tor' constr%ction li+e t$e legislative $istor' o( t$e la,. Congress in enacting -# 8558 to amen! )ection 0C5 o( t$e LGC !i! not &rovi!e an' e4em&tion (rom t$e increase! income re.%irement not even to res&on!ent m%nici&alities ,$ose cit'$oo! bills ,ere t$en &en!ing ,$en Congress &asse! -# 8558. )ection 0C5 o( t$e LGC as amen!e! b' -# 8558 contains no e4em&tion ,$atsoever. )ince t$e la, is clear &lain an! %nambig%o%s t$at an' m%nici&alit' !esiring to convert into a cit' m%st meet t$e increase! income re.%irement t$ere is no reason to go be'on! t$e letter o( t$e la, in a&&l'ing )ection 0C5 o( t$e LGC as amen!e! b' -# 8558. 2r%e members o( Congress !isc%sse! e4em&ting res&on!ent m%nici&alities (rom -# 8558 as s$o,n b' t$e vario%s !eliberations on t$e matter !%ring t$e 11t$ Congress. Ho,ever Congress !i! not ,rite t$is inten!e! e4em&tion into la,. Congress co%l! $ave easil' incl%!e! s%c$ e4em&tion in -# 8558 b%t Congress !i! not. 2$is is (atal to t$e ca%se o( res&on!ent m%nici&alities beca%se s%c$
1C8

e4em&tion m%st a&&ear in -# 8558 as an amen!ment to )ection 0C5 o( t$e LGC. 2$e Constit%tion re.%ires t$at t$e criteria (or t$e conversion o( a m%nici&alit' into a cit' incl%!ing an' e4em&tion (rom s%c$ criteria m%st all be ,ritten in t$e LGC. Congress cannot &rescribe s%c$ criteria or e4em&tion (rom s%c$ criteria in an' ot$er la,. *n s$ort Congress cannot create a cit' t$ro%g$ a la, t$at !oes not com&l' ,it$ t$e criteria or e4em&tion (o%n! in t$e LGC. 6ON t$e Cit'$oo! La,s violate )ec G#rt J o( t$e Constit%tion. @ni(orm an! nonD!iscriminator' criteria as &rescribe! in t$e LGC are essential to im&lement a (air an! e.%itable !istrib%tion o( national ta4es to all local government %nits. )ection G #rticle J o( t$e Constit%tion &rovi!es: Local government %nits s$all $ave a 9%st s$are as !etermine! b' la, in t$e national ta4es ,$ic$ s$all be a%tomaticall' release! to t$em. *( t$e criteria in creating local government %nits are not %ni(orm an! !iscriminator' t$ere can be no (air an! 9%st !istrib%tion o( t$e national ta4es to local government %nits. # cit' ,it$ an ann%al income o( onl' =/5 million all ot$er criteria being e.%al s$o%l! not receive t$e same s$are in national ta4es as a cit' ,it$ an ann%al income o( =155 million or more. 2$e criteria o( lan! area &o&%lation an! income as &rescribe! in )ection 0C5 o( t$e LGC m%st be strictl' (ollo,e! beca%se s%c$ criteria &rescribe! b' la, are material in !etermining t$e E9%st s$areF o( local government %nits in national ta4es. )ince t$e Cit'$oo! La,s !o not (ollo, t$e income criterion in )ection 0C5 o( t$e LGC t$e' &revent t$e (air an! 9%st !istrib%tion o( t$e *nternal -even%e #llotment in violation o( )ection G #rticle J o( t$e Constit%tion. 6ON t$e !eliberations o( %na&&rove! bills b' t$e 11t$ Congress ma' be %se! as basis (or t$ose a&&rove! b' t$e 1/t$ . NO Congress is not a contin%ing bo!'. 2$e %na&&rove! cit'$oo! bills (ile! !%ring t$e 11t$ Congress became mere scra&s o( &a&er %&on t$e a!9o%rnment o( t$e 11t$ Congress. #ll t$e $earings an! !eliberations con!%cte! !%ring t$e 11t$ Congress on %na&&rove! bills also became ,ort$less %&on t$e a!9o%rnment o( t$e 11t$ Congress. 2$ese $earings an! !eliberations cannot be %se! to inter&ret bills enacte! into la, in t$e 11t$ or s%bse.%ent Congresses. 2$e members an! o((icers o( eac$ Congress are !i((erent. #ll %na&&rove! bills (ile! in one Congress become (%nct%s o((icio %&on a!9o%rnment o( t$at Congress an! m%st be reD (ile! ane, in or!er to be ta+en %& in t$e ne4t Congress. 6$en t$eir res&ective a%t$ors reD(ile! t$e cit'$oo! bills in /55G !%ring t$e 11t$ Congress t$e bills $a! to start (rom s.%are one again going t$ro%g$ t$e legislative mill 9%st li+e bills ta+en %& (or t$e (irst time (rom t$e (iling to t$e a&&roval. 2$e !eliberations !%ring t$e 11t$ Congress on t$e %na&&rove! cit'$oo! bills as ,ell as t$e !eliberations !%ring t$e 1/t$ an! 11t$ Congresses on t$e %na&&rove! resol%tion e4em&ting (rom -# 8558 certain m%nici&alities $ave no legal signi(icance. 2$e' !o not .%ali(' as e4trinsic ai!s in constr%ing la,s &asse! b' s%bse.%ent Congresses. 6ON t$e e.%al &rotection cla%se ,as violate!. *( )ection 0C5 o( t$e LGC as amen!e! b' -# 8558 containe! an e4em&tion to t$e =155 million ann%al income re.%irement t$e criteria (or s%c$ e4em&tion co%l! be scr%tiniBe! (or &ossible violation o( t$e e.%al &rotection cla%se. 2$%s t$e criteria (or t$e e4em&tion i( (o%n! in t$e LGC co%l! be assaile! on t$e gro%n! o( absence o( a vali! classi(ication. Ho,ever )ection 0C5 o( t$e LGC as amen!e! b' -# 8558 !oes not contain an' e4em&tion. 2$e e4em&tion is containe! in t$e Cit'$oo! La,s ,$ic$ are %nconstit%tional beca%se s%c$ e4em&tion m%st be &rescribe! in t$e LGC as man!ate! in )ection 15 #rticle J o( t$e Constit%tion. 3ven i( t$e e4em&tion &rovision in t$e Cit'$oo! La,s ,ere ,ritten in )ection 0C5 o( t$e LGC as amen!e! b' -# 8558 s%c$ e4em&tion ,o%l! still be %nconstit%tional (or violation o( t$e e.%al &rotection cla%se. 2$e e4em&tion &rovision merel' states E34em&tion (rom -e&%blic #ct No. 8558 2$e Cit' o( 4 4 4 s$all be e4em&te! (rom t$e income re.%irement &rescribe! %n!er -e&%blic #ct No. 8558.F 2$is one sentence e4em&tion &rovision contains no classi(ication stan!ar!s or g%i!elines !i((erentiating t$e e4em&te! m%nici&alities (rom t$ose t$at are not e4em&te!. 3ven i( ,e ta+e into acco%nt t$e !eliberations in t$e 11t$ Congress t$at m%nici&alities ,it$ &en!ing cit'$oo! bills
/.
/.
/.
1G5

s$o%l! be e4em&t (rom t$e =155 million income re.%irement t$ere is still no vali! classi(ication to satis(' t$e e.%al &rotection cla%se. 2$e e4em&tion ,ill be base! solel' on t$e (act t$at t$e 1G m%nici&alities $a! cit'$oo! bills &en!ing in t$e 11t$ Congress ,$en -# 8558 ,as enacte!. 2$is is not a vali! classi(ication bet,een t$ose entitle! an! t$ose not entitle! to e4em&tion (rom t$e =155 million income re.%irement. 2o be vali! t$e classi(ication in t$e &resent case m%st be base! on s%bstantial !istinctions rationall' relate! to a legitimate government ob9ective ,$ic$ is t$e &%r&ose o( t$e la, U/1V not limite! to e4isting con!itions onl' an! a&&licable to all similarl' sit%ate!. 2$%s t$is Co%rt $as r%le!: 2$e e.%al &rotection cla%se o( t$e 1887 Constit%tion &ermits a vali! classi(ication %n!er t$e (ollo,ing con!itions: 1. 2$e classi(ication m%st rest on s%bstantial !istinctionsA /. 2$e classi(ication m%st be germane to t$e &%r&ose o( t$e la,A 1. 2$e classi(ication m%st not be limite! to e4isting con!itions onl'A an! 0. 2$e classi(ication m%st a&&l' e.%all' to all members o( t$e same class. 2$ere is no s%bstantial !istinction bet,een m%nici&alities ,it$ &en!ing cit'$oo! bills in t$e 11t$ Congress an! m%nici&alities t$at !i! not $ave &en!ing bills. 2$e mere &en!enc' o( a cit'$oo! bill in t$e 11t$ Congress is not a material !i((erence to !isting%is$ one m%nici&alit' (rom anot$er (or t$e &%r&ose o( t$e income re.%irement. 2$e &en!enc' o( a cit'$oo! bill in t$e 11t$ Congress !oes not a((ect or !etermine t$e level o( income o( a m%nici&alit'. M%nici&alities ,it$ &en!ing cit'$oo! bills in t$e 11t$ Congress mig$t even $ave lo,er ann%al income t$an m%nici&alities t$at !i! not $ave &en!ing cit'$oo! bills. *n s$ort t$e classi(ication criterion a mere &en!enc' o( a cit'$oo! bill in t$e 11t$ Congress a is not rationall' relate! to t$e &%r&ose o( t$e la, ,$ic$ is to &revent (iscall' nonDviable m%nici&alities (rom converting into cities. M%nici&alities t$at !i! not $ave &en!ing cit'$oo! bills ,ere not in(orme! t$at a &en!ing cit'$oo! bill in t$e 11t$ Congress ,o%l! be a con!ition (or e4em&tion (rom t$e increase! =155 million income re.%irement. Ha! t$e' been in(orme! man' m%nici&alities ,o%l! $ave ca%se! t$e (iling o( t$eir o,n cit'$oo! bills. 2$ese m%nici&alities even i( t$e' $ave bigger ann%al income t$an t$e 1G res&on!ent m%nici&alities cannot no, convert into cities i( t$eir income is less t$an =155 million. 2$e (act o( &en!enc' o( a cit'$oo! bill in t$e 11t$ Congress limits t$e e4em&tion to a s&eci(ic con!ition e4isting at t$e time o( &assage o( -# 8558. 2$at s&eci(ic con!ition ,ill never $a&&en again. 2$is violates t$e re.%irement t$at a vali! classi(ication m%st not be limite! to e4isting con!itions onl'. 2$is re.%irement is ill%strate! in Ma'(lo,er Farms *nc. v. 2en 3'c+ ,$ere t$e c$allenge! la, allo,e! mil+ !ealers engage! in b%siness &rior to a (i4e! !ate to sell at a &rice lo,er t$an t$at allo,e! to ne,comers in t$e same b%siness. *n Ma'(lo,er t$e @.). )%&reme Co%rt $el!: 6e are re(erre! to a $ost o( !ecisions to t$e e((ect t$at a reg%lator' la, ma' be &ros&ective in o&eration an! ma' e4ce&t (rom its s,ee& t$ose &resentl' engage! in t$e calling or activit' to ,$ic$ it is !irecte!. 34am&les are stat%tes licensing &$'sicians an! !entists ,$ic$ a&&l' onl' to t$ose entering t$e &ro(ession s%bse.%ent to t$e &assage o( t$e act an! e4em&t t$ose t$en in &ractice or Boning la,s ,$ic$ e4em&t e4isting b%il!ings or la,s (orbi!!ing sla%g$ter$o%ses ,it$in certain areas b%t e4ce&ting e4isting establis$ments. 2$e c$allenge! &rovision is %nli+e s%c$ la,s since on its (ace it is not a reg%lation o( a b%siness or an activit' in t$e interest o( or (or t$e &rotection o( t$e &%blic b%t an attem&t to give an economic a!vantage to t$ose engage! in a given b%siness at an arbitrar' !ate as against all t$ose ,$o enter t$e in!%str' a(ter t$at !ate. 2$e a&&ellees !o not intimate t$at t$e classi(ication bears an' relation to t$e &%blic $ealt$ or ,el(are generall'A t$at t$e &rovision ,ill !isco%rage mono&ol'A or t$at it ,as aime! at an' ab%se cogniBable b' la, in t$e mil+ b%siness. *n t$e absence o( an' s%c$ s$o,ing ,e $ave no rig$t to con9%re %& &ossible sit%ations ,$ic$ mig$t 9%sti(' t$e !iscrimination. 2$e classi(ication is arbitrar' an! %nreasonable an! !enies t$e a&&ellant t$e e.%al &rotection o( t$e la,. *n t$e same vein t$e e4em&tion &rovision in t$e Cit'$oo! La,s gives t$e 1G m%nici&alities a %ni.%e a!vantage base! on an arbitrar' !ate a t$e (iling o( t$eir cit'$oo! bills be(ore t$e en! o( t$e 11t$ Congress X as against all ot$er m%nici&alities t$at ,ant to convert into cities a(ter t$e e((ectivit' o( -# 8558.
1G1
Mabelle O. Nebres | Local Governments Case Digests F%rt$ermore limiting t$e e4em&tion onl' to t$e 1G
m%nici&alities violates t$e re.%irement t$at t$e classi(ication m%st a&&l' to all similarl' sit%ate!. M%nici&alities ,it$ t$e same income as t$e 1G res&on!ent m%nici&alities cannot convert into cities ,$ile t$e 1G res&on!ent m%nici&alities can. Clearl' as ,or!e! t$e e4em&tion &rovision (o%n! in t$e Cit'$oo! La,s even i( it ,ere ,ritten in )ection 0C5 o( t$e LGC ,o%l! still be %nconstit%tional (or violation o( t$e e.%al &rotection cla%se. -e'es !issent: 1. 2$e cit'$oo! la,s !o not violate )ection 15 #rticle J o( t$e 1887 Constit%tion. )ec 15 man!ator'. 2$e %se o( t$e ,or! "s$all" in a constit%tional &rovision is generall' consi!ere! as a man!ator' comman! t$o%g$ t$e ,or! "s$all" ma' receive a &ermissive inter&retation ,$en necessar' to carr' o%t t$e tr%e intent o( t$e &rovision ,$ere t$e ,or! is (o%n!. 2$%s it is not al,a's t$e case t$at t$e %se o( t$e ,or! "s$all" is concl%sive. Ho,ever a rea!ing o( )ection 15 #rticle J cannot be constr%e! as an't$ing else b%t man!ator'. 2$e intent o( -.#. No. 8558 ,$ic$ amen!e! )ection 0C5 o( t$e LGC is to e4em&t res&on!ent m%nici&alities (rom t$e income re.%irement o( =155 555 555.55. 2$%s t$e cit'$oo! la,s ,$ic$ merel' carr' o%t t$e intent o( -.#. No. 8558 are in accor!ance ,it$ t$e "criteria establis$e! in t$e LGC " &%rs%ant to )ection 15 #rticle J o( t$e 1887 Constit%tion. 2$e cit'$oo! la,s contain a %ni(orml' ,or!e! e4em&tion cla%se ,$ic$ states: "34em&tion (rom -e&%blic #ct No. 8558. 2$e cit' o( UbbbV s$all be e4em&t (rom t$e income re.%irement &rescribe! %n!er -e&%blic #ct No. 8558." 6$at Congress $a! in min! is not at all times acc%ratel' re(lecte! in t$e lang%age o( t$e stat%te. 2$%s t$e literal inter&retation o( a stat%te ma' ren!er it meaninglessA an! lea! to abs%r!it' in9%stice or contra!iction.15C 6$en t$is $a&&ens an! (ollo,ing t$e r%le t$at t$e intent or t$e s&irit o( t$e la, is t$e la, itsel( resort s$o%l! be $a! to t$e &rinci&le t$at t$e s&irit o( t$e la, controls its letter. Not to t$e letter t$at +illet$ b%t to t$e s&irit t$at vivi(iet$. Hin!i ang letra na &%ma&ata' +%ng $in!i ang !i,a na nagbibiga' b%$a'.
2$e &%r&ose o( t$e enactment o( -.#. No. 8558 can be seen

in t$e s&onsors$i& s&eec$ o( )enator =imentel on )enate Bill No. /1C7. Note,ort$' is $is statement t$at t$e basis (or t$e &ro&ose! increase (rom =/5 555 555.55 to =155 555 555.55 in t$e income re.%irement (or m%nici&alities an! cl%ster o( baranga's ,anting to be converte! into cities is t$e "ma! r%s$ o( m%nici&alities ,anting to be converte! into cities " an! in or!er t$at t$e co%ntr' ",ill not be a nation o( all cities an! no m%nici&alities." 2$e !eliberations o( Congress are necessar' to (erret o%t t$e intent o( t$e legislat%re in enacting -.#. No. 8558. *t is ver' clear t$at Congress inten!e! t$at t$e t$en &en!ing cit'$oo! bills ,o%l! not be covere! b' t$e income re.%irement o( =155 555 555.55 im&ose! b' -.#. No. 8558. *t ,as ma!e clear b' t$e Legislat%re t$at -.#. No. 8558 ,o%l! not $ave an' retroactive e((ect. *t t$en becomes clear t$at t$e basis (or t$e incl%sion o( t$e e4em&tion cla%se o( t$e cit'$oo! la,s is t$e clearDc%t intent o( t$e Legislat%re o( not giving retroactive e((ect to -.#. No. 8558. *n (act not onl' !o t$e legislative recor!s bear t$e legislative intent o( e4em&ting t$e cit'$oo! la,s (rom t$e income re.%irement o( =155 555 555.55 im&ose! b' -.#. No. 8558. Congress $as no, ma!e its intent e4&ress in t$e cit'$oo! la,s. =etitioners an! &etitionersDintervention ,ere not able to !isc$arge t$eir on%s &roban!i o( overcoming t$e &res%m&tion o( constit%tionalit' accor!e! to t$e cit'$oo! la,s. 2$e cit'$oo! la,s !o not violate t$e e.%al &rotection cla%se %n!er )ection 1 #rticle *** o( t$e Constit%tion b' granting s&ecial treatment to res&on!ent m%nici&alities in e4em&ting t$em (rom t$e minim%m income re.%irement im&ose! b' -.#. No. 8558. *n essence t$e Cit'$oo! Bills no, %n!er consi!eration ,ill $ave t$e same e((ect as t$at o( Ho%se 7oint -esol%tion No. 1 beca%se eac$ o( t$e 1/ bills see+s e4em&tion (rom t$e $ig$er income re.%irement o( -# 8558. 2$e &ro&onents are invo+ing t$e e4em&tion on t$e basis o( 9%stice an! (airness. Base! on t$ese !ata it is clear t$at all t$e 1/ m%nici&alities %n!er consi!eration are .%ali(ie! to become cities &rior to -# 8558. #ll o( t$em satis(' t$e man!ator' re.%irement on
1.
1G/

income an! one o( t$e t,o o&tional re.%irements o( territor'. 2$e classi(ication rests on s%bstantial !istinctions. 6$at !isting%is$es res&on!ent m%nici&alities (rom ot$er m%nici&alities is t$at t$e latter $a! &en!ing cit'$oo! bills be(ore t$e &assage o( -.#. No. 8558. *n t$e ,or!s o( )enator Lim t$e &ec%liar con!itions o( res&on!ent m%nici&alities ,$ic$ le! to t$eir e4em&tion (rom t$e increase! =155 555 555.55 income re.%irement o( -.#. No. 8558 is t$at t$e im&osition o( a m%c$ $ig$er income re.%irement on t$ose t$at ,ere .%ali(ie! to become cities be(ore t$e enactment o( -.#. No. 8558 ,as "%n(airA li+e an' s&ort D c$anging t$e r%les in t$e mi!!le o( t$e game." 2$%s "(airness !ictates t$at t$e' s$o%l! be given a legal reme!' b' ,$ic$ t$e' s$o%l! be allo,e! to &rove t$at t$e' $ave all t$e necessar' .%ali(ications (or cit' stat%s %sing t$e criteria set (ort$ %n!er t$e LGC &rior to its amen!ment b' -.#. No. 8558." 2r%l' t$e &ec%liar con!itions o( res&on!ent m%nici&alities ,$ic$ are act%al an! real (%rnis$ s%((icient gro%n!s (or legislative classi(ication. 2$e classi(ication is germane to t$e &%r&ose o( t$e la,. 2$e e4em&tion o( res&on!ent m%nici&alities (rom t$e =155 555 555.55 income re.%irement o( -.#. No. 8558 ,as %n.%estionabl' !esigne! to ins%re t$at (airness an! 9%stice ,ere accor!e! to res&on!ent m%nici&alities as t$eir cit'$oo! bills ,ere not enacte! b' Congress in vie, o( intervening events an! (or reasons be'on! t$eir control. 2$e e.%al &rotection cla%se !oes not merel' &ro$ibit Congress (rom &assing !iscriminator' la,s. 2$e e.%al &rotection cla%se also comman!s Congress to &ass la,s ,$ic$ ,o%l! &ositivel' &romote e.%alit' or re!%ce e4isting ine.%alities. 2$is ,as ,$at Congress act%all' !i! in enacting t$e cit'$oo! la,s. 2$ese la,s &ositivel' &romote e.%alit' an! re!%ce t$e e4isting ine.%alit' bet,een res&on!ent m%nici&alities an! t$e "ot$er t$irt'Dt,o ;1/< m%nici&alities" ,$ose cit'$oo! bills ,ere enacte! !%ring t$e 11t$ Congress. 2$e classi(ication is not limite! to e4isting con!itions onl'. 2$e nonDretroactive e((ect o( -.#. No. 8558 is not limite! in a&&lication to con!itions e4isting at t$e time o( its enactment. *t is inten!e! to a&&l' (or all time as long as t$e con!itions set t$ere e4ist. *t is a&&licable as long as t$e concerne! m%nici&alities $ave (ile! t$eir res&ective cit'$oo! bills be(ore t$e e((ectivit' o( -.#. No. 8558 an! .%ali(' (or conversion into cit' %n!er t$e original version o( )ection 0C5 o( t$e LGC. 2$e common e4em&tion cla%se in t$e cit'$oo! la,s is an a&&lication o( t$e nonDretroactive e((ect o( -.#. No. 8558. *t is not a !eclaration o( certain rig$ts b%t a mere !eclaration o( &rior .%ali(ication an!?or com&liance ,it$ t$e nonD retroactive e((ect o( -.#. No. 8558. C%rio%sl' &etitioners an! &etitionersDinDintervention !o not .%estion t$e constit%tionalit' o( -.#. No. 8558. *n (act t$e' %se -.#. No. 8558 to arg%e (or t$e allege! %nconstit%tionalit' o( t$e cit'$oo! la,s. 2$is is abs%r! consi!ering t$at t$e cit'$oo! la,s onl' e4&resse! t$e intent o( -.#. No. 8558 to e4em&t res&on!ent m%nici&alities (rom t$e income re.%irement o( =155 555 555.55. #n analog' ma' be (o%n! in t$e Constit%tion. CitiBens$i& ma' be grante! to t$ose born be(ore 7an%ar' 17 1871 o( Fili&ino mot$ers ,$o elect =$ili&&ine citiBens$i& %&on reac$ing t$e age o( ma9orit'. CitiBens$i& $o,ever is !enie! to t$ose ,$o alt$o%g$ born be(ore 7an%ar' 17 1871 o( Fili&ino mot$ers !i! not elect =$ili&&ine citiBens$i& %&on reac$ing t$e age o( ma9orit'.1CC *n li+e manner Congress $as t$e &o,er to carr' o%t t$e intent o( -.#. No. 8558 b' ma+ing a la, ,$ic$ e4em&ts m%nici&alities (rom t$e =155 555 555.55 income re.%irement im&ose! b' -.#. No. 8558 i( t$eir cit'$oo! la,s ,ere &en!ing ,$en -.#. No. 8558 ,as &asse! an! ,ere com&liant ,it$ t$e income t$res$ol! re.%irement o( =/5 555 555.55 im&ose! b' t$en )ection 0C5 o( t$e LGC. 3ven i( t$e classi(ication o( t$e cit'$oo! la,s is limite! to e4isting con!itions onl' t$is !oes not a%tomaticall' mean t$at t$e' are %nconstit%tional. 2$e general r%le is t$at a classi(ication m%st not be base! on e4isting con!itions onl'. *t m%st also be ma!e (or (%t%re ac.%isitions o( t$e class as ot$er s%b9ects ac.%ire t$e c$aracteristics ,$ic$ (orm t$e basis o( t$e classi(ication. 2$e e4ce&tion is ,$en t$e stat%te is c%rative or reme!ial an! t$%s tem&orar'. Here t$e cit'$oo! la,s are c%rative or reme!ial stat%tes. 2$e' see+ to &revent t$e great in9%stice ,$ic$ ,o%l! be committe! to res&on!ent m%nici&alities. #gain t$e cit'$oo! la,s are not contrar' to t$e s&irit an! intent o( -.#. No.
1G1

8558 beca%se Congress inten!e! sai! la, to be &ros&ective not retroactive in a&&lication. *n!ee! to !en' res&on!ent m%nici&alities t$e same rig$ts an! &rivileges accor!e! to t$e ot$er t$irt'Dt,o ;1/< m%nici&alities ,$en t$e' are %n!er t$e same circ%mstances is tantamo%nt to !en'ing res&on!ent m%nici&alities t$e &rotective mantle o( t$e e.%al &rotection cla%se. *n e((ect &etitioners an! &etitionersDinD intervention are creating an abs%r! sit%ation in ,$ic$ an allege! violation o( t$e e.%al &rotection cla%se o( t$e Constit%tion is reme!ie! b' anot$er violation o( t$e e.%al &rotection cla%se. 2$at t$e Co%rt cannot s%stain. 2$e classi(ication a&&lies e.%all' to all members o( t$e same class. 2$e cit'$oo! la,s in carr'ing o%t t$e clear intent o( -.#. No. 8558 a&&l' to m%nici&alities t$at $a! &en!ing cit'$oo! bills be(ore t$e &assage o( -.#. No. 8558 an! ,ere com&liant ,it$ t$en )ection 0C5 o( t$e LGC t$at &rescribe! an income re.%irement o( =/5 555 555.55. QQ)%mming @& Ma9orit'>s gro%n! (or %nconstit%tionalit': ;1< a&&l'ing -.#. No. 8558 to t$e &resent case is a &ros&ective not a retroactive a&&lication beca%se -.#. No. 8558 too+ e((ect in /551 ,$ile t$e cit'$oo! bills became la,s more t$an (ive ;C< 'ears laterA cit'$oo! bills ,ere &en!ing be(ore t$e &assage o( -.#. No. 8558. Congress ,as ,ell a,are o( s%c$ (act. 2$%s Congress inten!e! t$e $i+e! income re.%irement in -.#. No. 8558 not to a&&l' to t$e cit'$oo! bills ,$ic$ became t$e s%b9ect cit'$oo! la,s. 2$is is t$e conte4t o( t$e re(erence to t$e &ros&ective a&&lication o( t$e sai! -.#. Congress inten!e! t$e cit'$oo! la,s in .%estion to be e4em&te! (rom t$e income re.%irement o( =155 555 555.55 im&ose! b' -.#. No. 8558. ;/< t$e Constit%tion re.%ires t$at Congress s$all &rescribe all t$e criteria (or t$e creation o( a cit' in t$e LGC an! not in an' ot$er la,A 2$e secon! &oint is s&ecio%s. *t overloo+s t$at -.#. No. 8558 is no, )ection 0C5 o( t$e LGC. 2$e cit'$oo! la,s also merel' carr' o%t t$e intent o( -.#. No. 8558 to e4em&t res&on!ent m%nici&alities (rom t$e income re.%irement o( =155 555 555.55. ;1< t$e cit'$oo! la,s violate )ection G #rticle J o( t$e Constit%tion beca%se t$e' &revent a (air an! 9%st !istrib%tion o( t$e national ta4es to local government %nitsA 2$e t$ir! nee!s clari(ication. #rticle J )ection G o( t$e Constit%tion s&ea+s (or itsel(. 6$ile it is tr%e t$at local government %nits s$all $ave a "9%st s$are" in t$e national ta4es it is .%ali(ie! b' t$e &$rase "as !etermine! b' la,." ;0< t$e intent o( members o( Congress to e4em&t certain m%nici&alities (rom t$e coverage o( -.#. No. 8558 remaine! an intent an! ,as never ,ritten into la,A Congress meant not to incor&orate its intent in ,$at event%all' became -.#. No. 8558. 2o recall )enate =resi!ent Fran+lin Drilon as+e! i( t$ere ,o%l! be an a&&ro&riate lang%age to be cra(te! ,$ic$ ,o%l! re(lect t$e intent o( Congress. )enator #.%ilino =imentel gave a categorical ans,er: "* !o not t$in+ it is necessar' to &%t t$at &rovision beca%se ,$at ,e are sa'ing $ere ,ill (orm &art o( t$e inter&retation o( t$is bill." ;C< t$e criteria &rescribe! in )ection 0C5 o( t$e LGC as amen!e! b' -.#. No. 8558 (or converting a m%nici&alit' into a cit' are clear &lain an! %nambig%o%s nee!ing no resort to an' stat%tor' constr%ctionA Neit$er is t$e (i(t$ item &ers%asive. 2$e !issent a!mits t$at co%rts ma' resort to e4trinsic ai!s o( stat%tor' constr%ction li+e t$e legislative $istor' o( t$e la, i( t$e literal a&&lication o( t$e la, res%lts in abs%r!it' im&ossibilit' or in9%stice. ;G< t$e !eliberations o( t$e 11t$ or 1/t$ Congress on %na&&rove! bills or resol%tions are not e4trinsic ai!s in inter&reting a la, &asse! in t$e 11t$ Congress beca%se it is not a contin%ing bo!'A an! *t is immaterial i( Congress is not a contin%ing bo!'. 2$e $earings an! !eliberations con!%cte! !%ring t$e 11t$ or 1/t$ Congress ma' still be %se! as e4trinsic ai!s or re(erence beca%se t$e same cit'$oo! bills ,$ic$ ,ere (ile! be(ore t$e &assage o( -.#. No. 8558 ,ere being consi!ere! !%ring t$e 11t$ Congress. *t !oes not matter i( t$e o((icers o( eac$ Congress or t$e a%t$ors o( t$e bills are !i((erent. *n t$e en! t$e rationale (or e4em&ting t$e cit'$oo! bills (rom t$e =155 555 555.55 income re.%irement im&ose! b' -.#. No. 8558 remains t$e same: ;1< t$e cit'$oo! bills ,ere &en!ing be(ore t$e
1G0

&assage o( -.#. No. 8558 an! ;/< res&on!ent m%nici&alities ,ere com&liant ,it$ t$e =/5 555 555.55 income re.%irement im&ose! b' t$e ol! )ection 0C5 o( t$e LGC ,$ic$ ,as event%all' amen!e! b' -.#. No. 8558. 6$at s$o%l! not be overloo+e! is t$at t$e cit'$oo! la,s en9o' t$e &res%m&tion o( constit%tionalit'. =etitioners an! &etitionersDinDintervention bear t$e $eav' b%r!en o( overcoming s%c$ &res%m&tion. Ho,ever t$e ma9orit' !oes e4actl' t$e o&&osite. *t s$i(ts t$e on%s &roban!i to res&on!ent m%nici&alities to &rove t$at t$eir cit'$oo! la,s are constit%tional. 2$at is violative o( t$e basic r%le o( evi!ence. ;7< even i( t$e e4em&tion in t$e cit'$oo! la,s ,ere ,ritten in )ection 0C5 o( t$e LGC t$e e4em&tion ,o%l! still be %nconstit%tional (or violation o( t$e e.%al &rotection cla%se beca%se t$e e4em&tion is base! solel' on t$e (act t$at t$e 1G m%nici&alities $a! cit'$oo! bills &en!ing in t$e 11t$ Congress ,$en -.#. No. 8558 ,as enacte!. 2$e e4em&tion on t$e 1G m%nici&alities is not onl' base! on t$e (act t$at t$e' $a! &en!ing cit'$oo! bills ,$en -.#. No. 8558 ,as enacte!. #si!e (rom com&l'ing ,it$ t$e territor' an! &o&%lation re.%irements o( t$e LGC t$ese m%nici&alities also met t$e =/5 555 555.55 income t$res$ol! o( t$e ol! )ection 0C5 o( t$e LGC. QQ intent o( -.#. No. 8558 is clear. Congress inten!e! to e4em&t m%nici&alities ;1< t$at $a! &en!ing cit'$oo! bills be(ore t$e &assage o( -.#. No. 8558A an! ;/< t$at ,ere com&liant ,it$ t$e income t$res$ol! o( =/5 555 555.55 %n!er t$e ol! )ection 0C5 o( t$e LGC. -es&on!ent m%nici&alities are covere! b' t$e t,in criteria. 2$%s &etitioners an! &etitionersDinDintervention cannot $ar!l' claim t$e cit'$oo! la,s are %nconstit%tional on t$e gro%n! t$e' violate t$e criteria establis$e! in t$e LGC. Neit$er ma' t$e' claim t$at t$e cit'$oo! la,s violate t$e e.%al &rotection cla%se o( t$e Constit%tion. Congress is given t$e ,i!est latit%!e in ma+ing classi(ications an! in la'ing !o,n t$e criteria. )e&aration o( &o,ers &revents t$e Co%rt (rom &r'ing into t$e ,is!om or 9%!gment o( Congress. 3ven i( t$e Co%rt !i! t$ere is no %nreasonable classi(ication $ere m%c$ less grave ab%se o( !iscretion. 2$e intent o( Congress D to avert t$e ma! r%s$ o( m%nici&alities ,anting to be converte! into cities an! to &revent t$is nation (rom becoming a nation o( all cities an! no m%nici&alities D is &reserve!.
1GC
1GG
1G7
1G8
1G8
175
171
17/
171
170
17C
17G
177
178
178
185
181
Caasi v. CA Facts: Merito Mig%el ,on in t$e 1888 ma'oral elections in Bolinao =angasinan. =etitions ,ere (ile! see+ing to !is.%ali(' $im on t$e gro%n! t$at $e $ol!s a green car! iss%e! to $im b' t$e @) *mmigration )ervice ,$ic$ ,o%l! mean t$at $e $is a &ermanent resi!ent o( t$e @nite! )tates an! not o( Bolinao. COM3L3C !ismisse! t$e &etitions on t$e gro%n! t$at &ossession o( a green car! b' Mig%el !oes not s%((icientl' establis$ t$at $e $as aban!one! $is resi!ence in t$e =$ili&&ines. On t$e contrar' !es&ite $is green car! $e $as s%((icientl' in!icate! $is intention to contin%o%sl' resi!e in Bolinao as s$o,n b' $is $aving vote! in s%ccessive elections in sai! m%nici&alit'. Commissioner Ba!o'>s !issent: # green car! $ol!er being a &ermanent resi!ent o( or an immigrant o( a (oreign co%ntr' an! res&on!ent $aving a!mitte! t$at $e is a green car! $ol!er it is inc%mbent %&on $im %n!er )ection G8 o( t$e Omnib%s 3lection Co!e to &rove t$at $e "$as ,aive! $is stat%s as a &ermanent resi!ent or immigrant" to be .%ali(ie! to r%n (or electe! o((ice. 2$is res&on!ent $as not !one. Mig%el>s o&&onent Caasi also (ile! a &etition (or .%o ,arranto. Mig%el (ile! an M2D ,$ic$ ,as !enie! b' t$e -2C. C# or!ere! t$e -2C to !ismiss an! !esist (rom (%rt$er &rocee!ing in t$e .%o ,arranto case on t$e gro%n! t$at t$e COM3L3C $as alrea!' r%le! on $is .%ali(ications. *ss%es: 1. 6ON a green car! is &roo( t$at t$e $ol!er is a &ermanent resi!ent o( t$e @nite! )tates Consti: #rticle J* )ec. 18. =%blic o((icers an! em&lo'ees o,e t$e )tate an! t$is Constit%tion allegiance at all times an!
18/

an' &%blic o((icer or em&lo'ee ,$o see+s to c$ange $is citiBens$i& or ac.%ire t$e stat%s o( an immigrant o( anot$er co%ntr' !%ring $is ten%re s$all be !ealt ,it$ b' la,. Omnib%s 3lection Co!e: )3C. G8. Dis.%ali(ications ... #n' &erson ,$o is a &ermanent resi!ent o( or an immigrant to a (oreign co%ntr' s$all not be .%ali(ie! to r%n (or an' elective o((ice %n!er t$is Co!e %nless sai! &erson $as ,aive! $is stat%s as &ermanent resi!ent or immigrant o( a (oreign co%ntr' in accor!ance ,it$ t$e resi!ence re.%irement &rovi!e! (or in t$e election la,s. Co%rt too+ note o(: a.in t$e "#&&lication (or *mmigrant Kisa an! #lien -egistration" Mig%elHs ans,er regar!ing $is "Lengt$ o( inten!e! sta' ;i( &ermanentl' so state< " ,as E=ermanentl'." b. on its (ace t$e green car! t$at ,as s%bse.%entl' iss%e! b' t$e @nite! )tates De&artment o( 7%stice an! *mmigration an! -egistration )ervice to t$e res&on!ent Merito C. Mig%el i!enti(ies $im in clear bol! letters as a -3)*D3N2 #L*3N. c. On t$e bac+ o( t$e car! t$e %&&er &ortion t$e (ollo,ing in(ormation is &rinte!:#lien -egistration -ecei&t Car!. =erson i!enti(ie! b' t$is car! is entitle! to resi!e &ermanentl' an! ,or+ in t$e @nite! )tates." Des&ite $is vigoro%s !isclaimer Mig%elHs immigration to t$e @nite! )tates in 1880 constit%te! an aban!onment o( $is !omicile an! resi!ence in t$e =$ili&&ines. For $e !i! not go to t$e @nite! )tates merel' to visit $is c$il!ren or $is !octor t$ereA $e entere! t$e limite! )tates ,it$ t$e intention to $ave t$ere &ermanentl' as evi!ence! b' $is a&&lication (or an immigrantHs ;not a visitorHs or to%ristHs< visa. Base! on t$at a&&lication o( $is $e ,as iss%e! b' t$e @.). Government t$e re.%isite green car! or a%t$orit' to resi!e t$ere &ermanentl'. *mmigration: removing into one &lace (rom anot$erA t$e act o( immigrating t$e entering into a co%ntr' ,it$ t$e intention o( resi!ing in it. *mmigrant: &erson ,$o removes into a co%ntr' (or t$e &%r&ose o( &ermanent resi!ence. Ho,ever stat%tes sometimes give a broa!er meaning to t$e term "immigrant." #s a resi!ent alien in t$e @.). Mig%el o,es tem&orar' an! local allegiance to t$e @.). t$e co%ntr' in ,$ic$ $e resi!es. 2$is is in ret%rn (or t$e &rotection given to $im !%ring t$e &erio! o( $is resi!ence t$erein. #liens rea!ing in t$e limite! )tates ,$ile t$e' are &ermitte! to remain are in general entitle! to t$e &rotection o( t$e la,s ,it$ regar! to t$eir rig$ts o( &erson an! &ro&ert' an! to t$eir civil an! criminal res&onsibilit'. *n general aliens resi!ing in t$e @nite! )tates ,$ile t$e' are &ermitte! to remain are entitle! to t$e sa(eg%ar!s o( t$e constit%tion ,it$ regar! to t$eir rig$ts o( &erson an! &ro&ert' an! to t$eir civil an! criminal res&onsibilit'. 2$%s resi!ent alien (rien!s are entitle! to t$e bene(it o( t$e &rovision o( t$e Fo%rteent$ #men!ment to t$e (e!eral constit%tion t$at no state s$all !e&rive "an' &erson" o( li(e libert' or &ro&ert' ,it$o%t !%e &rocess o( la, or !en' to an' &erson t$e e.%al &rotection o( t$e la, an! t$e &rotection o( t$is amen!ment e4ten!s to t$e rig$t to earn a liveli$oo! b' (ollo,ing t$e or!inar' occ%&ations o( li(e. )o an alien is entitle! to t$e &rotection o( t$e &rovision o( t$e Fi(t$ #men!ment to t$e (e!eral constit%tion t$at no &erson s$all be !e&rive! o( li(e libert' or &ro&ert' ,it$o%t !%e &rocess o( la,. )ection 18 #rticle J* o( t$e 1887 Constit%tion ,$ic$ &rovi!es t$at "an' &%blic o((icer or em&lo'ee ,$o see+s to c$ange $is citiBens$i& or ac.%ire t$e stat%s o( an immigrant o( anot$er co%ntr' !%ring $is ten%re s$all be !ealt ,it$ b' la," is not a&&licable to Merito Mig%el (or $e ac.%ire! t$e stat%s o( an immigrant o( t$e @nite! )tates be(ore $e ,as electe! to &%blic o((ice not "!%ring $is ten%re" as ma'or o( Bolinao =angasinan. 2$e la, a&&licable to $im is )ection G8 o( t$e Omnib%s 3lection Co!e ;B.=. Blg. 881< ,$ic$ &rovi!es: #n' &erson ,$o is a &ermanent resi!ent o( or an immigrant to a (oreign co%ntr' s$all not be .%ali(ie! to r%n (or an' elective o((ice %n!er t$is Co!e %nless s%c$ &erson $as ,aive! $is stat%s as &ermanent resi!ent or immigrant o( a (oreign co%ntr' in accor!ance ,it$ t$e resi!ence re.%irement &rovi!e! (or in t$e election la,s.H 6ON Mig%el ,aive! $is stat%s as a &ermanent resi!ent o( or immigrant to t$e @.).#. &rior to t$e local elections on 7an%ar' 18 1888. 2o be ".%ali(ie! to r%n (or elective o((ice" in t$e =$ili&&ines t$e la, re.%ires t$at t$e can!i!ate ,$o is a green car! $ol!er m%st $ave ",aive! $is stat%s as a &ermanent resi!ent or immigrant o( a (oreign co%ntr'." 2$ere(ore $is act o( (iling a certi(icate o( can!i!ac' (or elective o((ice in
/.
181

t$e =$ili&&ines !i! not o( itsel( constit%te a ,aiver o( $is stat%s as a &ermanent resi!ent or immigrant o( t$e @nite! )tates. 2$e ,aiver o( $is green car! s$o%l! be mani(este! b' some act or acts in!e&en!ent o( an! !one &rior to (iling $is can!i!ac' (or elective o((ice in t$is co%ntr'. 6it$o%t s%c$ &rior ,aiver $e ,as "!is.%ali(ie! to r%n (or an' elective o((ice" ;)ec. G8 Omnib%s 3lection Co!e<. Mig%el a!mits t$at $e $ol!s a green car! ,$ic$ &roves t$at $e is a &ermanent resi!ent or immigrant it o( t$e @nite! )tates b%t t$e recor!s o( t$is case are star+l' bare o( &roo( t$at $e $a! ,aive! $is stat%s as s%c$ be(ore $e ran (or election as m%nici&al ma'or o( Bolinao on 7an%ar' 18 1888. 6e t$ere(ore $ol! t$at $e ,as !is.%ali(ie! to become a can!i!ate (or t$at o((ice. -esi!ence in t$e m%nici&alit' ,$ere $e inten!s to r%n (or elective o((ice (or at least one ;1< 'ear at t$e time o( (iling $is certi(icate o( can!i!ac' is one o( t$e .%ali(ications t$at a can!i!ate (or elective &%blic o((ice m%st &ossess. Mig%el !i! not &ossess t$at .%ali(ication beca%se $e ,as a &ermanent resi!ent o( t$e @nite! )tates an! $e resi!e! in Bolinao (or a &erio! o( onl' t$ree ;1< mont$s ;not one 'ear< a(ter $is ret%rn to t$e =$ili&&ines in November 1887 an! be(ore $e ran (or ma'or o( t$at m%nici&alit' on 7an%ar' 18 1888. *n banning (rom elective &%blic o((ice =$ili&&ine citiBens ,$o are &ermanent resi!ents or immigrants o( a (oreign co%ntr' t$e Omnib%s 3lection Co!e $as lai! !o,n a clear &olic' o( e4cl%!ing (rom t$e rig$t to $ol! elective &%blic o((ice t$ose =$ili&&ine citiBens ,$o &ossess !%al lo'alties an! allegiance. 2$e la, $as reserve! t$at &rivilege (or its citiBens ,$o $ave cast t$eir lot ,it$ o%r co%ntr' ",it$o%t mental reservations or &%r&ose o( evasion." 2$e ass%m&tion is t$at t$ose ,$o are resi!ent aliens o( a (oreign co%ntr' are inca&able o( s%c$ entire !evotion to t$e interest an! ,el(are o( t$eir $omelan! (or ,it$ one e'e on t$eir &%blic !%ties $ere t$e' m%st +ee& anot$er e'e on t$eir !%ties %n!er t$e la,s o( t$e (oreign co%ntr' o( t$eir c$oice in or!er to &reserve t$eir stat%s as &ermanent resi!ents t$ereo(. Mig%el insists t$at even t$o%g$ $e a&&lie! (or immigration an! &ermanent resi!ence in t$e @nite! )tates $e never reall' inten!e! to live t$ere &ermanentl' (or all t$at $e ,ante! ,as a green car! to enable $im to come an! go to t$e @.). ,it$ ease. *n ot$er ,or!s $e ,o%l! $ave t$is Co%rt believe t$at $e a&&lie! (or immigration to t$e @.). %n!er (alse &retensesA t$at all t$is time $e onl' $a! one (oot in t$e @nite! )tates b%t +e&t $is ot$er (oot in t$e =$ili&&ines. 3ven i( t$at ,ere tr%e t$is Co%rt ,ill not allo, itsel( to be a &art' to $is !%&licit' b' &ermitting $im to bene(it (rom it an! giving $im t$e best o( bot$ ,orl!s so to s&ea+. Mig%elHs a&&lication (or immigrant stat%s an! &ermanent resi!ence in t$e @.). an! $is &ossession o( a green car! attesting to s%c$ stat%s are concl%sive &roo( t$at $e is a &ermanent resi!ent o( t$e @.). !es&ite $is occasional visits to t$e =$ili&&ines. 2$e ,aiver o( s%c$ immigrant stat%s s$o%l! be as in!%bitable as $is a&&lication (or it. #bsent clear evi!ence t$at $e ma!e an irrevocable ,aiver o( t$at stat%s or t$at $e s%rren!ere! $is green car! to t$e a&&ro&riate @.). a%t$orities be(ore $e ran (or ma'or o( Bolinao in t$e local elections on 7an%ar' 18 1888 o%r concl%sion is t$at $e ,as !is.%ali(ie! to r%n (or sai! &%blic o((ice $ence $is election t$ereto ,as n%ll an! voi!. Ro riguez v. COM%L%C Facts : -o!rig%eB ,on against Mar.%eB (or t$e g%bernatorial &ost in W%eBon &rovince. Mar.%eB c$allenge! -o!rig%eB> victor' via &etition (or .%o ,arranto be(ore t$e COM3L3C. Mar.%eB reveale! t$at -o!rig%eB le(t t$e @nite! )tates ,$ere a c$arge (ile! on November 1/ 188C is &en!ing against t$e latter be(ore t$e Los #ngeles M%nici&al Co%rt (or (ra%!%lent ins%rance claims gran! t$e(t an! attem&te! gran! t$e(t o( &ersonal &ro&ert'. -o!rig%eB is t$ere(ore a "(%gitive (rom 9%stice" ,$ic$ is a gro%n! (or $is !is.%ali(ication?ineligibilit' %n!er )ection 05;e< o( t$e LGC. 2$e COM3L3C !ismisse! Mar.%eB> .%o ,arranto &etition in a resol%tion o( Febr%ar' / 1881 an! li+e,ise !enie! a reconsi!eration t$ereo(. Mar.%eB c$allenge! t$e COM3L3C !ismissal via &etition (or certiorari. *n t$e Ma' 8 188C election -o!rig%eB an! Mar.%eB rene,e! t$eir rivalr' (or t$e same &osition o( governor. 2$is time Mar.%eB c$allenge! -o!rig%eBH can!i!ac' via &etition (or !is.%ali(ication be(ore t$e COM3L3C base! &rinci&all' on t$e same allegation t$at -o!rig%eB is a "(%gitive (rom 9%stice." 2$is &etition (or !is.%ali(ication ,as (ile! b' Mar.%eB on #&ril 11 188C ,$en -o!rig%eBH &etition (or certiorari ;11/888< S (rom ,$ere t$e #&ril 18 188C M#-W@3Z Decision s&r%ng S ,as still t$en &en!ing
180

be(ore t$e Co%rt. On Ma' 7 188C an! a(ter t$e &rom%lgation o( t$e M#-W@3Z Decision t$e COM3L3C &rom%lgate! a Consoli!ate! -esol%tion (or 3=C No. 8/D/8 ;.%o ,arranto case< an! )=# No. 8CD 588 ;!is.%ali(ication case<. *ss%e: 6ON -o!rig%eB is a "(%gitive (rom 9%stice" as contem&late! b' )ection 05;e< o( t$e LGC base! on t$e allege! &en!enc' o( a criminal c$arge against $im. F%gitive (rom 9%stice: # &erson ,$o $aving committe! a crime (lees (rom 9%ris!iction o( t$e co%rt ,$ere crime ,as committe! or !e&arts (rom $is %s%al &lace o( abo!e an! conceals $imsel( ,it$in t$e !istrict ;Blac+>s La,< Ob9ective (acts s%((icient to constit%te (lig$t (rom 9%stice are: ;a< a &erson committe! a HcrimeH or $as been c$arge! (or t$e commission t$ereo(A an! ;b< t$erea(ter leaves t$e 9%ris!iction o( t$e co%rt ,$ere sai! crime ,as committe! or $is %s%al &lace o( abo!e. Filing o( c$arges &rior to (lig$t is not al,a's an antece!ent re.%irement to label one a H(%gitive (rom 9%stice.> Mere commission o( a HcrimeH ,it$o%t c$arges $aving been (ile! (or t$e same an! (lig$t s%bse.%ent t$ereto s%((icientl' meet t$e !e(inition. #ttention is !irecte! at t$e %se o( t$e ,or! HcrimeH ,$ic$ is not em&lo'e! to connote g%ilt or conviction (or t$e commission t$ereo(. 7%stice Davi!eHs se&arate o&inion in G.-. No. 11/888 el%ci!ates t$at t$e !is.%ali(ication (or being a (%gitive !oes not involve t$e iss%e o( t$e &res%m&tion o( innocence t$e reason (or !is.%ali(ication being t$at a &erson H,as not bro%g$t ,it$in t$e 9%ris!iction o( t$e co%rt beca%se $e $a! s%ccess(%ll' eva!e! arrestA or i( $e ,as bro%g$t ,it$in t$e 9%ris!iction o( t$e co%rt an! ,as trie! an! convicte! $e $as s%ccess(%ll' eva!e! service o( sentence beca%se $e $a! 9%m&e! bail or esca&e!. 2$e !is.%ali(ication t$en is base! on $is ](lig$t (rom 9%stice.> )tate v. -ic$ter: 2$e sim&le (act t$at t$e' ;&erson ,$o $ave committe! crime ,it$in a state< are not ,it$in t$e state to ans,er its criminal &rocess ,$en re.%ire! ren!ers t$em in legal inten!ment (%gitives (rom 9%stice. 2H3 M3-3 F#C2 2H#2 2H3-3 #-3 =3ND*NG CH#-G3) *N 2H3 @N*23D )2#23) #ND 2H#2 =32*2*ON3- -OD-*G@3Z *) *N 2H3 =H*L*==*N3) M#M3 =32*2*ON3- # HF@G*2*K3 F-OM 7@)2*C3.H
Mar.%eB !ecision: incl%!es not onl' t$ose ,$o (lee a(ter

conviction to avoi! &%nis$ment b%t li+e,ise ,$o a(ter being c$arge! (lee to avoi! &rosec%tion." 2$e !e(inition t$%s in!icates t$at t$e intent to eva!e is t$e com&elling (actor t$at animates oneHs (lig$t (rom a &artic%lar 9%ris!iction. #n! obvio%sl' t$ere can onl' be an intent to eva!e &rosec%tion or &%nis$ment ,$en t$ere is +no,le!ge b' t$e (leeing s%b9ect o( an alrea!' instit%te! in!ictment or o( a &rom%lgate! 9%!gment o( conviction. -o!rig%eBH case 9%st cannot (it in t$is conce&t. 2$ere is no !is&%te t$at $is arrival in t$e =$ili&&ines (rom t$e @) on 7%ne /C 188C as &er certi(ications iss%e! b' t$e B%rea% o( *mmigrations !ate! #&ril /7an! 7%ne /G o( 188C U0V &rece!e! t$e (iling o( t$e (elon' com&laint in t$e Los #ngeles Co%rt on November 1/ 188C an! o( t$e iss%ance on even !ate o( t$e arrest ,arrant b' t$at same (oreign co%rt b' almost (ive ;C< mont$s. *t ,as clearl' im&ossible (or -o!rig%eB to $ave +no,n abo%t s%c$ (elon' com&laint an! arrest ,arrant at t$e time $e le(t t$e @) as t$ere ,as in (act no com&laint an! arrest ,arrant S m%c$ less conviction S to s&ea+ o( 'et at s%c$ time. 6$at &rosec%tion or &%nis$ment t$en ,as -o!rig%eB !eliberatel' r%nning a,a' (rom ,it$ $is !e&art%re (rom t$e @)T 2$e ver' essence o( being a "(%gitive (rom 9%stice" %n!er t$e M#-W@3Z Decision !e(inition is 9%st no,$ere to be (o%n! in t$e circ%mstances o( -o!rig%eB. "2$e circ%mstantial (act t$at it ,as seventeen ;17< !a's a(ter -o!rig%eBH !e&art%re t$at c$arges against $im ,ere (ile! cannot overt%rn t$e &res%m&tion o( goo! (ait$ in $is (avor. 2$e same s%ggests not$ing more t$an t$e se.%ence o( events ,$ic$ trans&ire!. # s%b9ective (act as t$at o( &etitionerHs &%r&ose cannot be in(erre! (rom t$e ob9ective !ata at $an! in t$e absence o( (%rt$er &roo( to s%bstantiate s%c$ claim. *n (act t$e evi!ence o( &etitioner -o!rig%eB s%((icientl' &roves t$at $is com&%lsion to ret%rn to t$e =$ili&&ines ,as !%e to $is !esire to 9oin an! &artici&ate vigoro%sl' in t$e &olitical cam&aigns against (ormer =resi!ent Fer!inan! 3. Marcos. For in!ee! not long a(ter &etitionerHs arrival in t$e co%ntr' t$e %&$eaval ,ro%g$t b' t$e &olitical (orces an! t$e avalanc$e o( events ,$ic$ occ%rre! res%lte! in one o( t$e more color(%l events in =$ili&&ine $istor'. 2$e 3D)# -evol%tion le! to t$e o%ster o(
18C

(ormer =res. Marcos an! &reci&itate! c$anges in t$e &olitical climate. #n! being a (ig%re in t$ese !evelo&ments &etitioner -o!rig%eB began serving $is $ome &rovince as O*CDBoar! Member o( t$e )angg%niang =anlala,igan ng W%eBon in 188G. 2$en $e ,as electe! Governor in 1888 an! contin%es to be involve! in &olitics in t$e same ca&acit' as reDelecte! Governor in 188/ an! t$e !is&%te! reDelection in 188C. #ltoget$er t$ese lan!mar+ !ates $em in (or &etitioner a &erio! o( relentless intensive an! e4tensive activit' o( varie! &olitical cam&aigns S (irst against t$e Marcos government t$en (or t$e governors$i&. #n! serving t$e &eo&le o( W%eBon &rovince as s%c$ t$e &osition entails absol%te !e!ication o( oneHs time to t$e !eman!s o( t$e o((ice. "Having establis$e! &etitionerHs lac+ o( +no,le!ge o( t$e c$arges to be (ile! against $im at t$e time $e le(t t$e @nite! )tates it becomes immaterial %n!er s%c$ constr%ction to !etermine t$e e4act time ,$en $e ,as ma!e a,are t$ereo(. 6$ile t$e la, as inter&rete! b' t$e )%&reme Co%rt !oes not co%ntenance (lig$t (rom 9%stice in t$e instance t$at a &erson (lees t$e 9%ris!iction o( anot$er state a(ter c$arges against $im or a ,arrant (or $is arrest ,as iss%e! or even in vie, o( t$e imminent (iling an! iss%ance o( t$e same &etitionerHs &lig$t is altoget$er a !i((erent sit%ation. 6$en in goo! (ait$ a &erson leaves t$e territor' o( a state not $is o,n $ome,ar! bo%n! an! learns s%bse.%entl' o( c$arges (ile! against $im ,$ile in t$e relative &eace an! service o( $is o,n co%ntr' t$e (act t$at $e !oes not s%b9ect $imsel( to t$e 9%ris!iction o( t$e (ormer state !oes not .%ali(' $im o%trig$t as a (%gitive (rom 9%stice. 2$e severit' o( t$e la, constr%e! in t$e manner as to re.%ire o( a &erson t$at $e s%b9ect $imsel( to t$e 9%ris!iction o( anot$er state ,$ile alrea!' in $is co%ntr' or else be !is.%ali(ie! (rom o((ice is more a&&arent ,$en a&&lie! in &etitionerHs case. 2$e criminal &rocess o( t$e @nite! )tates e4ten!s onl' ,it$in its territorial 9%ris!iction. 2$at &etitioner $as alrea!' le(t sai! co%ntr' ,$en t$e latter so%g$t to s%b9ect $im to its criminal &rocess is $ar!l' &etitionerHs (a%lt. *n t$e absence o( an intent to eva!e t$e la,s o( t$e @nite! )tates &etitioner $a! ever' rig$t to !e&art t$ere(rom at t$e &recise time t$at $e !i! an! to ret%rn to t$e =$ili&&ines. No 9%sti(iable reason e4iste! to c%rtail or (etter &etitionerHs e4ercise o( $is rig$t to leave t$e @nite! )tate an! ret%rn $ome. Hence s%staining t$e contrar' &ro&osition ,o%l! be to %n!%l' b%r!en an! &%nis$ &etitioner (or e4ercising a rig$t as $e cannot be (a%lte! (or t$e circ%mstances t$at bro%g$t $im ,it$in =$ili&&ine territor' at t$e time $e ,as so%g$t to be &lace! %n!er arrest an! to ans,er (or c$arges (ile! against $im. "*t m%st be note! t$at moral %&rig$tness is not a stan!ar! too (arDreac$ing as to !eman! o( &olitical can!i!ate t$e &er(ormance o( !%ties an! obligations t$at are s%&ererogator' in nat%re. 6e !o not !is&%te t$at an allege! H(%gitive (rom 9%sticeH m%st &er(orm acts in or!er not to be so categoriBe!. Clearl' a &erson ,$o is a,are o( t$e imminent (iling o( c$arges against $im or o( t$e same alrea!' (ile! in connection ,it$ acts $e committe! in t$e 9%ris!iction o( a &artic%lar state is %n!er an obligation not to (lee sai! &lace o( commission. Ho,ever as in &etitionerHs case $is !e&art%re (rom t$e @nite! )tates ma' not &lace $im %n!er a similar obligation. His s%bse.%ent +no,le!ge ,$ile in t$e =$ili&&ines an! nonDs%bmission to t$e 9%ris!iction o( t$e (ormer co%ntr' !oes not o&erate to label &etitioner a%tomaticall' a (%gitive (rom 9%stice. #s $e ,as a &%blic o((icer a&&ointe! an! electe! imme!iatel' a(ter $is ret%rn to t$e co%ntr' &etitioner -o!rig%eB $a! ever' reason to !evote %tmost &riorit' to t$e service o( $is o((ice. He co%l! not $ave gone bac+ to t$e @nite! )tates in t$e mi!!le o( $is term nor co%l! $e $ave travele! intermittentl' t$ereto ,it$o%t 9eo&ar!iBing t$e interest o( t$e &%blic $e serves. 2o re.%ire t$at o( &etitioner ,o%l! be to &%t $im in a &ara!o4ical .%an!ar' ,$ere $e is com&elle! to violate t$e ver' (%nctions o( $is o((ice." 2o s%mmariBe t$e term "(%gitive (rom 9%stice" as a gro%n! (or t$e !is.%ali(ication or ineligibilit' o( a &erson see+ing to r%n (or an' elective local &osition %n!er )ection 05;e< o( t$e LGC s$o%l! be %n!erstoo! accor!ing to t$e !e(inition given in t$e M#-W@3Z Decision. *ntent to eva!e on t$e &art o( a can!i!ate m%st t$ere(ore be establis$e! b' &roo( t$at t$ere $as alrea!' been a conviction or at least a c$arge $as alrea!' been (ile! at t$e time o( (lig$t. Not being a "(%gitive (rom 9%stice" %n!er t$is !e(inition -o!rig%eB cannot be !enie! t$e W%eBon =rovince g%bernatorial &ost. *e La 'orre v. COM%L%C
18G

Facts: =etitioner -olan!o =. Dela 2orre via t$e instant &etition (or certiorari see+s t$e n%lli(ication o( t,o resol%tions iss%e! b' t$e COM3L3C allege!l' ,it$ grave ab%se o( !iscretion amo%nting to lac+ o( 9%ris!iction in a case (or !is.%ali(ication (ile! against &etitioner be(ore t$e COM3L3C. 2$e (irst assaile! resol%tion !ate! Ma' G 188C !eclare! t$e &etitioner !is.%ali(ie! (rom r%nning (or t$e &osition o( Ma'or o( Cavinti Lag%na in t$e last Ma' 8 188C elections citing as t$e gro%n! t$ere(or )ection 05;a< o( t$e LGC ,$ic$ &rovi!es as (ollo,s: 2$e (ollo,ing &ersons are !is.%ali(ie! (rom r%nning (or an' elective local &osition: ;a< 2$ose sentence! b' (inal 9%!gment (or an o((ense involving moral t%r&it%!e or (or an o((ense &%nis$able b' one ;1< 'ear or more o( im&risonment ,it$in t,o ;/< 'ears a(ter serving sentence. *n !is.%ali('ing t$e &etitioner t$e COM3L3C $el! t$at: Doc%mentar' evi!ence establis$e! t$at $erein res&on!ent ;&etitioner< ,as (o%n! g%ilt' b' t$e M%nici&al 2rial Co%rt (or violation o( =.D. 1G1/ ;ot$er,ise +no,n as t$e #ntiD (encing La,< in a Decision !ate! 7%ne 1 1885. -es&on!ent a&&eale! t$e sai! conviction ,it$ t$e -egional 2rial Co%rt ,$ic$ $o,ever a((irme! res&on!ent>s conviction in a Decision !ate! November 10 1885. -es&on!ent>s conviction became (inal on 7an%ar' 18 1881. 2$e secon! assaile! resol%tion !ate! #%g%st /8 188C !enie! &etitioner>s motion (or reconsi!eration. *n sai! motion &etitioner claime! t$at )ection 05 ;a< o( t$e LGC !oes not a&&l' to $is case inasm%c$ as t$e &robation grante! $im b' t$e M2C on December /1 1880 ,$ic$ s%s&en!e! t$e e4ec%tion o( t$e 9%!gment o( conviction an! all ot$er legal conse.%ences (lo,ing t$ere(rom ren!ere! ina&&licable )ection 05 ;a< as ,ell.U0V *ss%es: 1. 6ON t$e crime o( (encing involves moral t%r&it%!e. )ection 05 ;a<: E,$en t$e conviction b' (inal 9%!gment is (or an o((ense involving moral t%r&it%!e.F #n! in t$is connection t$e Co%rt $as consistentl' a!o&te! t$e !e(inition in Blac+>s La, Dictionar' o( Emoral t%r&it%!eF as: an act o( baseness vileness or !e&ravit' in t$e &rivate !%ties ,$ic$ a man o,es $is (ello,men or to societ' in general contrar' to t$e acce&te! an! c%stomar' r%le o( rig$t an! !%t' bet,een man an! ,oman or con!%ct contrar' to 9%stice $onest' mo!est' or goo! morals. Not ever' criminal act $o,ever involves moral t%r&it%!e. *t is (or t$is reason t$at Eas to ,$at crime involves moral t%r&it%!e is (or t$e )%&reme Co%rt to !etermineF. *n resolving t$e (oregoing .%estion t$e Co%rt is g%i!e! b' one o( t$e general r%les t$at crimes mala in se involve moral t%r&it%!e ,$ile crimes mala &ro$ibita !o not t$e rationale o( ,$ic$ ,as set (ort$ in EZari v. Flores F to ,it: E*t ;moral t%r&it%!e< im&lies somet$ing immoral in itsel( regar!less o( t$e (act t$at it is &%nis$able b' la, or not. *t m%st not be merel' mala &ro$ibita b%t t$e act itsel( m%st be in$erentl' immoral. 2$e !oing o( t$e act itsel( an! not its &ro$ibition b' stat%te (i4es t$e moral t%r&it%!e. Moral t%r&it%!e !oes not $o,ever incl%!e s%c$ acts as are not o( t$emselves immoral b%t ,$ose illegalit' lies in t$eir being &ositivel' &ro$ibite!.F 2$is g%i!eline nonet$eless &rove! s$ort o( &rovi!ing a clearD c%t sol%tion (or in E*nternational -ice -esearc$ *nstit%te v. NL-C t$e Co%rt a!mitte! t$at it cannot al,a's be ascertaine! ,$et$er moral t%r&it%!e !oes or !oes not e4ist b' merel' classi('ing a crime as mal%m in se or as mal%m &ro$ibit%m. 2$ere are crimes ,$ic$ are mala in se an! 'et b%t rarel' involve moral t%r&it%!e an! t$ere are crimes ,$ic$ involve moral t%r&it%!e an! are mala &ro$ibita onl'. *n t$e (inal anal'sis ,$et$er or not a crime involves moral t%r&it%!e is %ltimatel' a .%estion o( (act an! (re.%entl' !e&en!s on all t$e circ%mstances s%rro%n!ing t$e violation o( t$e stat%te. Fencing is !e(ine! in )ection / o( =.D.1G1/ ;#ntiDFencing La,< as: t$e act o( an' &erson ,$o ,it$ intent to gain (or $imsel( or (or anot$er s$all b%' receive &ossess +ee& ac.%ire conceal sell or !is&ose o( or s$all b%' an! sell or in an' manner !eal in an' article item ob9ect or an't$ing o( val%e ,$ic$ $e +no,s or s$o%l! be +no,n to $im to $ave been !erive! (rom t$e &rocee!s o( t$e crime o( robber' or t$e(t. 3lements: 1. # crime o( robber' or t$e(t $as been committe!A /. 2$e acc%se! ,$o is not a &rinci&al or accom&lice in t$e crime o( robber' or t$e(t b%'s receives &ossesses +ee&s ac.%ires conceals sells or !is&oses or b%'s an! sells or in an' manner !eals in an' article item ob9ect or an't$ing o( val%e ,$ic$ $ave been !erive! (rom t$e &rocee!s o( t$e sai! crimeA 1. 2$e acc%se! +no,s or s$o%l! $ave +no,n t$at t$e sai! article item ob9ect or an't$ing o( val%e $as been !erive! (rom t$e &rocee!s o( t$e
187

crime o( robber' or t$e(tA an! 0. 2$ere is on t$e &art o( t$e acc%se! intent to gain (or $imsel( or (or anot$er. Moral t%r&it%!e is !e!%cible (rom t$e t$ir! element. #ct%al +no,le!ge b' t$e E(enceF o( t$e (act t$at &ro&ert' receive! is stolen !is&la's t$e same !egree o( malicio%s !e&rivation o( one>s rig$t(%l &ro&ert' as t$at ,$ic$ animate! t$e robber' or t$e(t ,$ic$ b' t$eir ver' nat%re are crimes o( moral t%r&it%!e. #n! alt$o%g$ t$e &artici&ation o( eac$ (elon in t$e %nla,(%l ta+ing !i((ers in &oint in time an! in !egree bot$ t$e E(enceF an! t$e act%al &er&etrator?s o( t$e robber' or t$e(t inva!e! one>s &eace(%l !ominion (or gain D t$%s !eliberatel' reneging in t$e &rocess E&rivate !%tiesF t$e' o,e t$eir E(ello,menF or Esociet'F in a manner Econtrar' to acce&te! an! c%stomar' r%le o( rig$t an! !%t' 9%stice $onest' or goo! morals.F 2$e !%t' not to a&&ro&riate or to ret%rn an't$ing ac.%ire! eit$er b' mista+e or ,it$ malice is so basic it (in!s e4&ression in some +e' &rovisions o( t$e Civil Co!e on EH%man -elationsF an! E)ol%tio *n!ebitiF 2$e same %n!erl'ing reason $ol!s even i( t$e E(enceF !i! not $ave act%al +no,le!ge b%t merel' Es$o%l! $ave +no,nF t$e origin o( t$e &ro&ert' receive!. *n t$is regar! t$e Co%rt $el!: E6$en +no,le!ge o( t$e e4istence o( a &artic%lar (act is an element o( t$e o((ense s%c$ +no,le!ge is establis$e! i( a &erson is a,are o( t$e $ig$ &robabilit' o( its e4istence %nless $e act%all' believes t$at it !oes not e4ist. On t$e ot$er $an! t$e ,or!s ]s$o%l! +no,> !enote t$e (act t$at a &erson o( reasonable &r%!ence an! intelligence ,o%l! ascertain t$e (act in t$e &er(ormance o( $is !%t' to anot$er or ,o%l! govern $is con!%ct %&on ass%m&tion t$at s%c$ (act e4ists.F 6ON a grant o( &robation a((ects )ection 05 ;a<>s a&&licabilit'. #nent t$e secon! iss%e ,$ere &etitioner conten!s t$at $is &robation $a! t$e e((ect o( s%s&en!ing t$e a&&licabilit' o( )ection 05 ;a< o( t$e LGC s%((ice it to sa' t$at t$e legal e((ect o( &robation is onl' to s%s&en! t$e e4ec%tion o( t$e sentence. =etitioner>s conviction o( (encing ,$ic$ ,e $ave $ereto(ore !eclare! as a crime o( moral t%r&it%!e an! t$%s (alling s.%arel' %n!er t$e !is.%ali(ication (o%n! in )ection 05 ;a< s%bsists an! remains totall' %na((ecte! not,it$stan!ing t$e grant o( &robation. *n (act a 9%!gment o( conviction in a criminal case i&so (acto attains (inalit' ,$en t$e acc%se! a&&lies (or &robation alt$o%g$ it is not e4ec%tor' &en!ing resol%tion o( t$e a&&lication (or &robation. Clearl' t$en &etitioner>s t$eor' $as no merit. Magno v. COM%L%C Facts: # case ,as (ile! b' &rivate res&on!ent on Marc$ /1 /551 (or t$e !is.%ali(ication o( &etitioner Nestor Magno as ma'oralt' can!i!ate o( )an *si!ro N%eva 3ci9a !%ring t$e Ma' 10 /551 elections on t$e gro%n! t$at &etitioner ,as &revio%sl' convicte! b' t$e )an!iganba'an o( (o%r co%nts o( !irect briber' &enaliBe! %n!er #rticle /15 o( t$e -evise! =enal Co!e. *t a&&ears t$at on 7%l' /C 188C &etitioner ,as sentence! to s%((er t$e in!eterminate &enalt' o( 1 mont$s an! 11 !a's o( arresto ma'or as minim%m to 1 'ear 8 mont$s an! /1 !a's o( &rision correccional as ma4im%m (or eac$ o( t$e (o%r co%nts o( !irect briber'. 2$erea(ter &etitioner a&&lie! (or &robation an! ,as !isc$arge! on Marc$ C 1888 %&on or!er o( t$e -egional 2rial Co%rt o( Ga&an N%eva 3ci9a. On Ma' 7 /551 t$e Commission on 3lections ;COM3L3C< ren!ere! a !ecision granting t$e &etition o( &rivate res&on!ent an! !eclaring t$at &etitioner ,as !is.%ali(ie! (rom r%nning (or t$e &osition o( ma'or in t$e Ma' 10 /551 elections base! on )ec 1/ o( t$e Omnib%s 3lection Co!e. On Ma' 15 /551 &etitioner (ile! a motion (or reconsi!eration b%t t$e same ,as !enie! b' t$e COM3L3C in its resol%tion !ate! Ma' 1/ /551. Hence t$is &etition. *ss%e: 6ON &etitioner ,as !is.%ali(ie! to r%n (or ma'or in t$e /551 elections. a. ,$et$er t$e crime o( !irect briber' involves moral t%r&it%!e Moral 2%r&it%!e: an act o( baseness vileness or !e&ravit' in t$e &rivate !%ties ,$ic$ a man o,es $is (ello, men or to societ' in general contrar' to t$e acce&te! an! c%stomar' r%le o( rig$t an! !%t' bet,een man an! ,oman or con!%ct contrar' to 9%stice $onest' mo!est' or goo! morals. ;Blac+>s La,< 3lements o( Briber': 1. t$e o((en!er is a &%blic o((icerA /. t$e o((en!er acce&ts an o((er or &romise or receives a gi(t or &resent b' $imsel( or t$ro%g$ anot$erA 1. s%c$ o((er or &romise be acce&te! or gi(t or &resent be receive! b' t$e &%blic o((icer ,it$ a vie, to committing some crime or in consi!eration o( t$e e4ec%tion o( an act ,$ic$ !oes not constit%te a crime b%t t$e act m%st be %n9%st or to re(rain
/.
188

(rom !oing somet$ing ,$ic$ it is $is o((icial !%t' to !oA an! 0. t$e act ,$ic$ t$e o((en!er agrees to &er(orm or ,$ic$ $e e4ec%tes is connecte! ,it$ t$e &er(ormance o( $is o((icial !%ties. Moral t%r&it%!e can be in(erre! (rom t$e t$ir! element. 2$e (act t$at t$e o((en!er agrees to acce&t a &romise or gi(t an! !eliberatel' commits an %n9%st act or re(rains (rom &er(orming an o((icial !%t' in e4c$ange (or some (avors !enotes a malicio%s intent on t$e &art o( t$e o((en!er to renege on t$e !%ties ,$ic$ $e o,es $is (ello,men an! societ' in general. #lso t$e (act t$at t$e o((en!er ta+es a!vantage o( $is o((ice an! &osition is a betra'al o( t$e tr%st re&ose! on $im b' t$e &%blic. *t is a con!%ct clearl' contrar' to t$e acce&te! r%les o( rig$t an! !%t' 9%stice $onest' an! goo! morals. *n all res&ects !irect briber' is a crime involving moral t%r&it%!e. ,$et$er it is t$e Omnib%s 3lection Co!e or t$e LGC t$at s$o%l! a&&l' in t$is sit%ation. 2$ere a&&ears to be a glaring incom&atibilit' bet,een t$e (iveD'ear !is.%ali(ication &erio! &rovi!e! in )ec 1/ o( t$e Omnib%s 3lection Co!e an! t$e t,oD'ear !is.%ali(ication &erio! in )ec 05 o( t$e LGC. *t s$o%l! be note! t$at t$e Omnib%s 3lection Co!e ;B= 881< ,as a&&rove! on December 1 188C ,$ile t$e LGC ;-# 71G5< too+ e((ect on 7an%ar' 1 188/. *t is basic in stat%tor' constr%ction t$at in case o( irreconcilable con(lict bet,een t,o la,s t$e later enactment m%st &revail being t$e more recent e4&ression o( legislative ,ill. Legis &osteriores &riores contrarias abrogant. *n enacting t$e later la, t$e legislat%re is &res%me! to $ave +no,le!ge o( t$e ol!er la, an! inten!e! to c$ange it. F%rt$ermore t$e re&ealing cla%se o( )ection C10 o( -# 71G5 or t$e LGC states t$at: ;(< #ll general an! s&ecial la,s acts cit' c$arters !ecrees e4ec%tive or!ers &roclamations an! a!ministrative reg%lations or &art or &arts t$ereo( ,$ic$ are inconsistent ,it$ an' &rovisions o( t$is Co!e are $ereb' re&eale! or mo!i(ie! accor!ingl'. *n accor!ance t$ere,it$ )ection 05 o( -# 71G5 is !eeme! to $ave re&eale! )ection 1/ o( B= 881. F%rt$ermore #rticle 7 o( t$e Civil Co!e &rovi!es t$at la,s are re&eale! onl' b' s%bse.%ent ones an! not t$e ot$er ,a' aro%n!. 6$en a s%bse.%ent la, entirel' encom&asses t$e s%b9ect matter o( t$e (ormer enactment t$e latter is !eeme! re&eale!.
Davi! v. COM3L3C: -# 71G5 is a co!i(ie! set o( la,s t$at

s&eci(icall' a&&lies to local government %nits. )ection 05 t$ereo( s&eciall' an! !e(initivel' &rovi!es (or !is.%ali(ications o( can!i!ates (or elective local &ositions. *t is a&&licable to t$em onl'. On t$e ot$er $an! )ection 1/ o( B= 881 s&ea+s o( !is.%ali(ications o( can!i!ates (or an' &%blic o((ice. *t !eals ,it$ t$e election o( all &%blic o((icers. 2$%s )ection 05 o( -# 71G5 inso(ar as it governs t$e !is.%ali(ications o( can!i!ates (or local &ositions ass%mes t$e nat%re o( a s&ecial la, ,$ic$ o%g$t to &revail. 2$e intent o( t$e legislat%re to re!%ce t$e !is.%ali(ication &erio! o( can!i!ates (or local &ositions (rom (ive to t,o 'ears is evi!ent. 2$e car!inal r%le in t$e inter&retation o( all la,s is to ascertain an! give e((ect to t$e intent o( t$e la,. 2$e re!%ction o( t$e !is.%ali(ication &erio! (rom (ive to t,o 'ears is t$e mani(est intent. 2$ere(ore alt$o%g$ $is crime o( !irect briber' involve! moral t%r&it%!e &etitioner nonet$eless co%l! not be !is.%ali(ie! (rom r%nning in t$e /551 elections. #rticle 1/ o( t$e Omnib%s 3lection Co!e ;B= 881< m%st 'iel! to #rticle 05 o( t$e LGC. =etitioner>s !is.%ali(ication cease! as o( Marc$ C /555 an! $e ,as t$ere(ore %n!er no s%c$ !is.%ali(ication an'more ,$en $e ran (or ma'or o( )an *si!ro N%eva 3ci9a in t$e Ma' 10 /551 elections. Lingating v. COM%L%C Facts: Mig%el M. Lingating (ile! a !is.%ali(ication case against res&on!ent Cesar B. )%long as can!i!ate (or ma'or o( La&%'an Zamboanga !el )%r in t$e Ma' 10 /551 elections &%rs%ant to c05;b< o( t$e LGC ,$ic$ !is.%ali(ies (rom r%nning (or an' elective local &osition Et$ose remove! (rom o((ice as a res%lt o( an a!ministrative case. *t a&&ears t$at res&on!ent )%long $a! &revio%sl' ,on as ma'or o( La&%'an on 7an%ar' 18 1888. *n t$e Ma' 11 188/ an! again in t$e Ma' 8 188C elections $e ,as reelecte!. *n a &etition (or !is.%ali(ication &etitioner allege! t$at in 1881 !%ring $is (irst term as ma'or o( La&%'an res&on!ent )%long along ,it$ a m%nici&al co%ncilor o( La&%'an an! several ot$er in!ivi!%als ,as a!ministrativel' c$arge! ,it$ vario%s o((enses an! t$at on Febr%ar' 0 188/ t$e )angg%niang =anlala,igan o( Zamboanga !el )%r (o%n! $im g%ilt' o( t$e c$arges an! or!ere! $is removal (rom o((ice. =etitioner claime! t$at t$is !ecision $a! become (inal an! e4ec%tor' an! conse.%entl' t$e
a.
188

t$en viceDma'or o( La&%'an Kicente *mbing too+ $is oat$ as ma'or vice res&on!ent )%long on Marc$ 1 188/. -es&on!ent )%long !enie! t$at t$e !ecision in #C No. 1/D81 $a! become (inal an! e4ec%tor'. He averre! t$at a(ter receiving a co&' o( t$e !ecision on Febr%ar' 17 188/ $e (ile! a motion (or reconsi!eration an!?or notice o( a&&eal t$ereo( on Febr%ar' 18 188/A t$at on Febr%ar' /7 188/ t$e )angg%niang =anlala,igan re.%ire! 7im Lingating t$e com&lainant in #C No. 1/D81 to comment on res&on!ent )%long>s motion (or reconsi!eration an!?or notice o( a&&ealA t$at t$e sai! com&lainant $a! not 'et com&lie! t$ere,it$ an! $is ;res&on!ent )%long>s< motion $a! conse.%entl' remaine! &en!ing. -es&on!ent )%long !enie! $e $a! been remove! (rom o((ice b' virt%e o( t$e !ecision in #C No. 1/D81. #(ter t$e &arties $a! (ile! t$eir memoran!a t$e case ,as s%bmitte! (or resol%tion. Beca%se t$e COM3L3C ,as %nable to ren!er 9%!gment be(ore t$e elections o( Ma' 10 /551 res&on!ent )%long ,as vote! (or in t$e elections receiving 0 88/ votes as against t$e 1 G11 votes (or &etitioner. On Ma' 1G /551 res&on!ent )%long ,as &roclaime! b' t$e M%nici&al Boar! o( Canvassers o( La&%'an as t$e !%l' electe! ma'or o( t$at m%nici&alit'. *n a resol%tion !ate! #%g%st 1 /551 t$e COM3L3C>s First Division !eclare! res&on!ent Cesar B. )%long !is.%ali(ie!. -es&on!ent )%long (ile! a motion (or reconsi!eration citing a certi(ication !ate! #%g%st 7 /551 o( =rovincial )ecretar' o( Zamboanga !el )%r ;O*C< 6il(re!o Cima(ranca t$at t$e !ecision in #C No. 1/D81 E$as not become (inal an! e4ec%tor' as t$e (inal !is&osition t$ereo( ,as overta+en b' t$e local elections o( Ma' 188/.F He reiterate! $is claim t$at at no time $a! $e been remove! b' virt%e o( t$e sai! !ecision. =etitioner (ile! an o&&osition conten!ing among ot$er t$ings t$at t$e (act t$at Zamboanga !el )%r Governor #riosa $a! or!ere! t$e en(orcement o( t$e !ecision signi(ie! t$at res&on!ent )%long>s motion (or reconsi!eration an!?or notice o( a&&eal $a! not been given !%e co%rse b' t$e )angg%niang =anlala,iganA an! t$at res&on!ent )%long>s claim t$at $e $a! not been remove! (rom o((ice ,as belie! b' t$e (act t$at $e ;res&on!ent )%long< bro%g$t c$arges against Kicente *mbing (or @s%r&ation o( O((icial F%nctions ;*.). No. 8/D1C< in s%&&ort o( ,$ic$ res&on!ent )%long atteste! %n!er oat$ t$at *mbing $a! s%ccee!e! $im as ma'or o( La&%'an. *n a se&arate motion &etitioner &ra'e! t$at t$e resol%tion o( #%g%st 1 /551 be e4ec%te! an! t$at $e be installe! as ma'or o( La&%'an in vie, o( &rivate res&on!ent>s !is.%ali(ication. On #%g%st 15 /551 t$e COM3L3C>s First Division !enie! &etitioner>s motion (or e4ec%tion on t$e gro%n! t$at t$e !is.%ali(ication o( an electe! $ig$est n%mber o( votes to occ%&' t$e o((ice vacate!. =etitioner t$en (ile! a motion (or reconsi!eration o( t$is or!er. On #&ril 0 /55/ t$e COM3L3C en banc iss%e! its resol%tion s%b9ect o( t$e &etition in t$is case reversing t$e resol%tion !ate! #%g%st 1 /551 o( its First Division inso(ar as it (o%n! res&on!ent )%long !is.%ali(ie! (rom r%nning as ma'or. *n t$e Ma' 188/ elections res&on!ent )%long ,as reDelecte! ma'or o( La&%'an Zamboanga !el )%r !es&ite t$e !ecision o( t$e )angg%niang !ismissing $im (rom o((ice. *n t$e 188C Ma' elections res&on!ent )%long ran an! ,on t$e ma'oralt' elections o( La&%'an Zamboanga !el )%r. 2$e COM3L3C en banc also r%le! t$at in an' event res&on!ent )%long ,as not entitle! to occ%&' t$e o((ice t$%s vacate!. Hence t$is &etition b' Lingating. *ss%e: 6ON an elective local e4ec%tive o((icer ,$o is remove! be(ore t$e e4&iration o( t$e term (or ,$ic$ $e ,as electe! is !is.%ali(ie! (rom being a can!i!ate (or a local elective &osition %n!er c05;b< o( t$e LGC. -e'es case: =etitioner invo+es t$e r%ling in #g%inal!o v. COM3L3C in ,$ic$ it ,as $el! t$at a &%blic o((icial co%l! not be remove! (or miscon!%ct committe! !%ring a &rior term an! t$at $is reelection o&erate! as a con!onation o( t$e o((icer>s &revio%s miscon!%ct to t$e e4tent o( c%tting o(( t$e rig$t to remove $im t$ere(or. B%t t$at ,as beca%se in t$at case be(ore t$e &etition .%estioning t$e vali!it' o( t$e a!ministrative !ecision removing &etitioner co%l! be !eci!e! t$e term o( o((ice !%ring ,$ic$ t$e allege! miscon!%ct ,as committe! e4&ire!. -emoval cannot e4ten! be'on! t$e term !%ring ,$ic$ t$e allege! miscon!%ct ,as committe!. *( a &%blic o((icial is not remove! be(ore $is term o( o((ice e4&ires $e can no longer be remove! i( $e is t$erea(ter reelecte! U(orV anot$er term. 2$is is t$e rationale (or t$e r%ling in t$e t,o #g%inal!o cases. 2$e case at bar is t$e ver' o&&osite o( t$ose cases. Here . . . t$e !ecision in t$e a!ministrative case . . . ,as serve! on &etitioner an! it t$erea(ter became (inal on #&ril 1 188C beca%se &etitioner (aile! to a&&eal to t$e O((ice o( t$e =resi!ent. He ,as t$%s vali!l' remove! (rom o((ice an! &%rs%ant to c05;b< o( t$e LGC $e ,as !is.%ali(ie! (rom r%nning (or reelection. *t is note,ort$' t$at at t$e time t$e #g%inal!o cases ,ere !eci!e! t$ere ,as no &rovision similar to c05;b< ,$ic$
185

!is.%ali(ies an' &erson (rom r%nning (or an' elective &osition on t$e gro%n! t$at $e $as been remove! as a res%lt o( an a!ministrative case. 2$e LGC o( 1881 ;-.#. No. 71G5< co%l! not be given retroactive e((ect. Ho,ever -e'es cannot be a&&lie! to t$is case beca%se it a&&ears t$at t$e 188/ !ecision o( t$e )angg%niang =anlala,igan (in!ing res&on!ent )%long g%ilt' o( !is$onest' (alsi(ication an! malversation o( &%blic (%n!s $as not %ntil no, become (inal. 2$e recor!s o( t$is case s$o, t$at t$e )angg%niang =anlala,igan o( Zamboanga !el )%r ren!ere! 9%!gment in #C No. 1/D81 on Febr%ar' 0 188/ a co&' o( ,$ic$ ,as receive! b' res&on!ent )%long on Febr%ar' 17 188/A t$at on Febr%ar' 18 188/ $e (ile! a Emotion (or reconsi!eration an!?or notice o( a&&ealAF t$at on Febr%ar' /7 188/ t$e )angg%niang =anlala,igan re.%ire! 7im Lingating t$e com&lainant in #C No. 1/D81 to commentA an! t$at t$e com&lainant in #C No. 1/D81 $as not (ile! a comment nor $as t$e )angg%niang =anlala,igan resolve! res&on!ent>s motion. 2$e (iling o( $is motion (or reconsi!eration &revente! t$e !ecision o( )angg%niang =anlala,igan (rom becoming (inal. 6$ile -.#. No. 71G5 on !isci&linar' actions is silent on t$e (iling o( a motion (or reconsi!eration t$e same cannot be inter&rete! as a &ro$ibition against t$e (iling o( a motion (or reconsi!eration. 2$%s it ,as $el!U1CV t$at a &art' in a !isbarment &rocee!ing %n!er -%le 118DB c1/;c< can move (or a reconsi!eration o( a resol%tion o( t$e *ntegrate! Bar o( t$e =$ili&&ines alt$o%g$ -%le 118DB !oes not so &rovi!e: #lt$o%g$ -%le 118DB c1/;c< ma+es no mention o( a motion (or reconsi!eration not$ing in its te4t or $istor' s%ggests t$at s%c$ motion is &ro$ibite!. *t ma' t$ere(ore be (ile! . . . . *n!ee! t$e (iling o( s%c$ motion s$o%l! be enco%rage! be(ore Uan a&&eal isV resortUe!V to . . . as a matter o( e4$a%stion o( a!ministrative reme!ies to a((or! t$e agenc' ren!ering t$e 9%!gment UanV o&&ort%nit' to correct an' error it ma' $ave committe! t$ro%g$ a misa&&re$ension o( (acts or misa&&reciation o( evi!ence. 2$ere is t$%s no !ecision (in!ing res&on!ent g%ilt' to s&ea+ o(. #s =rovincial )ecretar' o( Zamboanga !el )%r 6il(re!o Cima(ranca atteste! t$e )angg%niang =anlala,igan sim&l' consi!ere! t$e matter as $aving become moot an! aca!emic beca%se it ,as Eoverta+en b' t$e local elections o( Ma' U11 V188/.F Neit$er can t$e s%ccession o( t$e t$en viceDma'or o( La&%'an Kicente *mbing an! t$e $ig$est ran+ing m%nici&al co%ncilor o( La&%'an -omeo 2an to t$e o((ices o( ma'or an! viceDma'or res&ectivel' be consi!ere! &roo( t$at t$e !ecision in #C No. 1/D81 $a! become (inal beca%se it a&&ears to $ave been ma!e &%rs%ant to cG8U1GV o( t$e LGC ,$ic$ ma+es !ecisions in a!ministrative cases imme!iatel' e4ec%tor'. *n!ee! consi!ering t$e (ail%re o( t$e )angg%niang =anlala,igan to resolve res&on!ent>s motion it is %n(air to t$e electorate to be tol! a(ter t$e' $ave vote! (or res&on!ent )%long t$at a(ter all $e is !is.%ali(ie! es&eciall' since at t$e time o( t$e elections on Ma' 10 /551 t$e !ecision o( t$e )angg%niang =anlala,igan $a! been ren!ere! nearl' ten 'ears ago. Having come to t$e concl%sion t$at res&on!ent )%long is not !is.%ali(ie! (rom $ol!ing t$e &osition o( ma'or o( La&%'an it is %nnecessar' to &ass %&on &etitioner>s contention t$at as t$e can!i!ate ,$o obtaine! t$e secon! $ig$est n%mber o( votes $e is entitle! to be installe! as ma'or beca%se t$e votes cast in (avor o( res&on!ent )%long ,ere voi!. &lores v. COM%L%C Facts: 2$e constit%tionalit' o( )ec. 11 &ar. ;!< o( -.#. 7//7 ot$er,ise +no,n as t$e "Bases Conversion an! Develo&ment #ct o( 188/ " %n!er ,$ic$ res&on!ent Ma'or -ic$ar! 7. Gor!on o( Olonga&o Cit' ,as a&&ointe! C$airman an! C$ie( 34ec%tive O((icer o( t$e )%bic Ba' Metro&olitan #%t$orit' ;)BM#< is c$allenge! in t$is original &etition ,it$ &ra'er (or &ro$ibition &reliminar' in9%nction an! tem&orar' restraining or!er "to &revent %seless an! %nnecessar' e4&en!it%res o( &%blic (%n!s b' ,a' o( salaries an! ot$er o&erational e4&enses attac$e! to t$e o((ice . . . ." =aragra&$ ;!< rea!s: C$airman a!ministrator S 2$e =resi!ent s$all a&&oint a &ro(essional manager as a!ministrator o( t$e )%bic #%t$orit' ,it$ a com&ensation to be !etermine! b' t$e Boar! s%b9ect to t$e a&&roval o( t$e )ecretar' o( B%!get ,$o s$all be t$e e4 o(icio c$airman o( t$e Boar! an! ,$o s$all serve as t$e c$ie( e4ec%tive o((icer o( t$e )%bic #%t$orit': =rovi!e! $o,ever 2$at (or t$e (irst
181

'ear o( its o&erations (rom t$e e((ectivit' o( t$is #ct t$e ma'or o( t$e Cit' o( Olonga&o s$all be a&&ointe! as t$e c$airman an! c$ie( e4ec%tive o((icer o( t$e )%bic #%t$orit'. =etitioners ,$o claim to be ta4&a'ers em&lo'ees o( t$e @.). Facilit' at t$e )%bic Zambales an! o((icers an! members o( t$e Fili&ino Civilian 3m&lo'ees #ssociation in @.). Facilities in t$e =$ili&&ines maintain t$at t$e &roviso in &ar. ;!< o( )ec. 11 in(ringes on t$e (ollo,ing constit%tional an! stat%tor' &rovisions: ;a< )ec. 7 (irst &ar. #rt. *JD B o( t$e Constit%tion ,$ic$ states t$at "UnVo elective o((icial s$all be eligible (or a&&ointment or !esignation in an' ca&acit' to an' &%blic o((icer or &osition !%ring $is ten%re " beca%se t$e Cit' Ma'or o( Olonga&o Cit' is an elective o((icial an! t$e s%b9ect &osts are &%blic o((icesA ;b< )ec. 1G #rt. K** o( t$e Constit%tion ,$ic$ &rovi!es t$at "UtV$e =resi!ent s$all . . . . a&&oint all ot$er o((icers o( t$e Government ,$ose a&&ointments are not ot$er,ise &rovi!e! (or b' la, an! t$ose ,$om $e ma' be a%t$oriBe! b' la, to a&&oint" since it ,as Congress t$ro%g$ t$e .%estione! &roviso an! not t$e =resi!ent ,$o a&&ointe! t$e Ma'or to t$e s%b9ect &ostsA an! ;c< )ec. /G1 &ar. ;g< o( t$e Omnib%s 3lection Co!e ,$ic$ sa's: )ec. /G1. =ro$ibite! #cts. S 2$e (ollo,ing s$all be g%ilt' o( an election o((ense: . . . ;g< #&&ointment o( ne, em&lo'ees creation o( ne, &osition &romotion or giving salar' increases. S D%ring t$e &erio! o( (ort'D(ive !a's be(ore a reg%lar election an! t$irt' !a's be(ore a s&ecial election ;1< an' $ea! o((icial or a&&ointing o((icer o( a government o((ice agenc' or instr%mentalit' ,$et$er national or local incl%!ing governmentD o,ne! or controlle! cor&orations ,$o a&&oints or $ires an' ne, em&lo'ee ,$et$er &rovisional tem&orar' or cas%al or creates an! (ills an' ne, &osition e4ce&t %&on &rior a%t$orit' o( t$e Commission. 2$e Commission s$all not grant t$e a%t$orit' so%g$t %nless it is satis(ie! t$at t$e &osition to be (ille! is essential to t$e &ro&er (%nctioning o( t$e o((ice or agenc' concerne! an! t$at t$e &osition s$all not be (ille! in a manner t$at ma' in(l%ence t$e election. #s an e4ce&tion to t$e (oregoing &rovisions a ne, em&lo'ee ma' be a&&ointe! in case o( %rgent nee!: =rovi!e! $o,ever 2$at notice o( t$e a&&ointment s$all be given to t$e Commission ,it$in t$ree !a's (rom t$e !ate o( t$e a&&ointment. #n' a&&ointment or $iring in violation o( t$is &rovision s$all be n%ll an! voi!. ;/< #n' government o((icial ,$o &romotes or gives an' increase o( salar' or rem%neration or &rivilege to an' government o((icial or em&lo'ee incl%!ing t$ose in governmentDo,ne! or controlle! cor&orations . . . .(or t$e reason t$at t$e a&&ointment o( res&on!ent Gor!on to t$e s%b9ect &osts ma!e b' res&on!ent 34ec%tive )ecretar' on 1 #&ril 188/ ,as ,it$in t$e &ro$ibite! 0CD !a' &erio! &rior to t$e 11 Ma' 188/ 3lections. *ss%e: 6ON &roviso in )ec. 11 &ar. ;!< o( -.#. 7//7 ,$ic$ states "=rovi!e! $o,ever 2$at (or t$e (irst 'ear o( its o&erations (rom t$e e((ectivit' o( t$is #ct t$e ma'or o( t$e Cit' o( Olonga&o s$all be a&&ointe! as t$e c$airman an! c$ie( e4ec%tive o((icer o( t$e )%bic #%t$orit' " violates t$e constit%tional &roscri&tion against a&&ointment or !esignation o( elective o((icials to ot$er government &osts. )ec. 7 o( #rt. *JDB o( t$e Constit%tion:No elective o((icial s$all be eligible (or a&&ointment or !esignation in an' ca&acit' to an' &%blic o((ice or &osition !%ring $is ten%re. @nless ot$er,ise allo,e! b' la, or b' t$e &rimar' (%nctions o( $is &osition no a&&ointive o((icial s$all $ol! an' ot$er o((ice or em&lo'ment in t$e Government or an' s%b!ivision agenc' or instr%mentalit' t$ereo( incl%!ing governmentD o,ne! or controlle! cor&orations or t$eir s%bsi!iaries. 2$e section e4&resses t$e &olic' against t$e concentration o( several &%blic &ositions in one &erson so t$at a &%blic o((icer or em&lo'ee ma' serve (%llDtime ,it$ !e!ication an! t$%s be e((icient in t$e !eliver' o( &%blic services. *t is an a((irmation t$at a &%blic o((ice is a (%llDtime 9ob. Hence a &%blic o((icer or em&lo'ee li+e t$e $ea! o( an e4ec%tive !e&artment !escribe! in Civil Liberties @nion v. 34ec%tive )ecretar' G.-. No. 8188G an! #ntiDGra(t Leag%e o( t$e =$ili&&ines *nc. v. =$ili& 3lla C. 7%ico as )ecretar' o( #grarian -e(orm G.-. No. 8181C G ". . . . s$o%l! be allo,e! to atten! to $is !%ties an! res&onsibilities ,it$o%t t$e !istraction o( ot$er governmental !%ties or em&lo'ment. He s$o%l! be &recl%!e! (rom !issi&ating $is e((orts attention an! energ' among too man' &ositions o( res&onsibilit' ,$ic$ ma' res%lt in $a&$aBar!ness an! ine((icienc' . . . ." *n t$e case be(ore %s t$e s%b9ect &roviso !irects t$e =resi!ent to a&&oint an elective o((icial i.e. t$e Ma'or o( Olonga&o Cit' to ot$er government &osts ;as C$airman o( t$e Boar! an! C$ie( 34ec%tive O((icer o( )BM#<. )ince t$is is &recisel' ,$at t$e constit%tional &roscri&tion see+s to &revent it nee!s no stretc$ing o( t$e imagination to concl%!e t$at t$e &roviso contravenes )ec. 7 (irst &ar. #rt. *JDB o( t$e Constit%tion. Here t$e (act t$at t$e e4&ertise o(
18/

an elective o((icial ma' be most bene(icial to t$e $ig$er interest o( t$e bo!' &olitic is o( no moment. *t is arg%e! t$at )ec. 80 o( t$e LGC ;LGC< &ermits t$e a&&ointment o( a local elective o((icial to anot$er &ost i( so allo,e! b' la, or b' t$e &rimar' (%nctions o( $is o((ice. 8 B%t t$e contention is (allacio%s. )ection 80 o( t$e LGC is not !eterminative o( t$e constit%tionalit' o( )ec. 11 &ar. ;!< o( -.#. 7//7 (or no legislative act can &revail over t$e (%n!amental la, o( t$e lan!. Moreover since t$e constit%tionalit' o( )ec. 80 o( LGC is not t$e iss%e $ere nor is t$at section so%g$t to be !eclare! %nconstit%tional ,e nee! not r%le on its vali!it'. Neit$er can ,e invo+e a &ractice ot$er,ise %nconstit%tional as a%t$orit' (or its vali!it'. *n an' case t$e vie, t$at an elective o((icial ma' be a&&ointe! to anot$er &ost i( allo,e! b' la, or b' t$e &rimar' (%nctions o( $is o((ice ignores t$e clearDc%t !i((erence in t$e ,or!ing o( t$e t,o ;/< &aragra&$s o( )ec. 7 #rt. JDB o( t$e Constit%tion. 6$ile t$e secon! &aragra&$ a%t$oriBes $ol!ing o( m%lti&le o((ices b' an a&&ointive o((icial ,$en allo,e! b' la, or b' t$e &rimar' (%nctions o( $is &osition t$e (irst &aragra&$ a&&ears to be more stringent b' not &rovi!ing an' e4ce&tion to t$e r%le against a&&ointment or !esignation o( an elective o((icial to t$e government &ost e4ce&t as are &artic%larl' recogniBe! in t$e Constit%tion itsel( e.g. t$e =resi!ent as $ea! o( t$e economic an! &lanning agenc'A 8 t$e KiceD=resi!ent ,$o ma' be a&&ointe! Member o( t$e CabinetA 15 an! a member o( Congress ,$o ma' be !esignate! e4 o((icio member o( t$e 7%!icial an! Bar Co%ncil. 2$e !istinction bet,een t$e (irst an! secon! &aragra&$s o( )ec. 7 #rt. *JDB ,as not acci!ental ,$en !ra,n an! not ,it$o%t reason. *t ,as &%r&osel' so%g$t b' t$e !ra(ters o( t$e Constit%tion as s$o,n in t$eir !eliberation t$%s S M-. MON)OD. *n ot$er ,or!s ,$at t$en Commissioner is sa'ing Mr. =resi!ing O((icer is t$at t$e &ro$ibition is more strict ,it$ res&ect to elective o((icials beca%se in t$e case o( a&&ointive o((icials t$ere ma' be a la, t$at ,ill allo, t$em to $ol! ot$er &ositions. M-. FOZ. :es * s%ggest ,e ma+e t$at !i((erence beca%se in t$e case o( a&&ointive o((icials t$ere ,ill be certain sit%ations ,$ere t$e la, s$o%l! allo, t$em to $ol! some ot$er &ositions. 2$e !istinction being clear t$e e4em&tion allo,e! to a&&ointive o((icials in t$e secon! &aragra&$ cannot be e4ten!e! to elective o((icials ,$o are governe! b' t$e (irst &aragra&$. *t is (%rt$er arg%e! t$at t$e )BM# &osts are merel' e4 o((icio to t$e &osition o( Ma'or o( Olonga&o Cit' $ence an e4ce&te! circ%mstance citing Civil Liberties @nion v. 34ec%tive )ecretar' ,$ere ,e state! t$at t$e &ro$ibition against t$e $ol!ing o( an' ot$er o((ice or em&lo'ment b' t$e =resi!ent KiceD=resi!ent Members o( t$e Cabinet an! t$eir !e&%ties or assistants !%ring t$eir ten%re as &rovi!e! in )ec. 11 #rt. K** o( t$e Constit%tion !oes not com&re$en! a!!itional !%ties an! (%nctions re.%ire! b' t$e &rimar' (%nctions o( t$e o((icials concerne! ,$o are to &er(orm t$em in an e4 o((icio ca&acit' as &rovi!e! b' la, ,it$o%t receiving an' a!!itional com&ensation t$ere(or. 2$is arg%ment is a&&arentl' base! on a ,rong &remise. Congress !i! not contem&late ma+ing t$e s%b9ect )BM# &osts as e4 o((icio or a%tomaticall' attac$e! to t$e O((ice o( t$e Ma'or o( Olonga&o Cit' ,it$o%t nee! o( a&&ointment. 2$e &$rase "s$all be a&&ointe!" %n.%estionabl' s$o,s t$e intent to ma+e t$e )BM# &osts a&&ointive an! not merel' a!9%nct to t$e &ost o( Ma'or o( Olonga&o Cit'. Ha! it been t$e legislative intent to ma+e t$e s%b9ect &ositions e4 o((icio Congress ,o%l! $ave at least avoi!e! t$e ,or! "a&&ointe!" an! instea! "e4 o((icio" ,o%l! $ave been %se!. 3ven in t$e )enate !eliberations t$e )enators ,ere (%ll' a,are t$at s%b9ect &roviso ma' contravene )ec. 7 (irst &ar. #rt. *JDB b%t t$e' nevert$eless &asse! t$e bill an! !eci!e! to $ave t$e controvers' resolve! b' t$e co%rts. *n!ee! t$e )enators ,o%l! not $ave been concerne! ,it$ t$e e((ects o( )ec. 7 (irst &ar. $a! t$e' consi!ere! t$e )BM# &osts as e4 o((icio. =etitioners also assail t$e legislative encroac$ment on t$e a&&ointing a%t$orit' o( t$e =resi!ent. )ection 11 &ar. ;!< itsel( vests in t$e =resi!ent t$e &o,er to a&&oint t$e C$airman o( t$e Boar! an! t$e C$ie( 34ec%tive O((icer o( )BM# alt$o%g$ $e reall' $as no c$oice %n!er t$e la, b%t to a&&oint t$e Ma'or o( Olonga&o Cit'. #s ma' be !e(ine! an "a&&ointment" is "UtV$e !esignation o( a &erson b' t$e &erson or &ersons $aving a%t$orit' t$ere(or to !isc$arge t$e !%ties o( some o((ice or tr%st " 17 or "UtV$e selection or !esignation o( a &erson b' t$e &erson
181

or &ersons $aving a%t$orit' t$ere(or to (ill an o((ice or &%blic (%nction an! !isc$arge t$e !%ties o( t$e same. *n $is treatise =$ili&&ine =olitical La, )enior #ssociate 7%stice *sagani #. Cr%B !e(ines a&&ointment as "t$e selection b' t$e a%t$orit' veste! ,it$ t$e &o,er o( an in!ivi!%al ,$o is to e4ercise t$e (%nctions o( a given o((ice." Consi!ering t$at a&&ointment calls (or a selection t$e a&&ointing &o,er necessaril' e4ercises a !iscretion. #ccor!ing to 6oo!b%r' 7. "t$e c$oice o( a &erson to (ill an o((ice constit%tes t$e essence o( $is a&&ointment " an! Mr. 7%stice Malcolm a!!s t$at an "UaV&&ointment to o((ice is intrinsicall' an e4ec%tive act involving t$e e4ercise o( !iscretion." =amantasan ng L%ngso! ng Ma'nila v. *nterme!iate #&&ellate Co%rt: 2$e &o,er to a&&oint is in essence !iscretionar'. 2$e a&&ointing &o,er $as t$e rig$t o( c$oice ,$ic$ $e ma' e4ercise (reel' accor!ing to $is 9%!gment !eci!ing (or $imsel( ,$o is best .%ali(ie! among t$ose ,$o $ave t$e necessar' .%ali(ications an! eligibilities. *t is a &rerogative o( t$e a&&ointing &o,er 6$en Congress clot$es t$e =resi!ent ,it$ t$e &o,er to a&&oint an o((icer it ;Congress< cannot at t$e same time limit t$e c$oice o( t$e =resi!ent to onl' one can!i!ate. Once t$e &o,er o( a&&ointment is con(erre! on t$e =resi!ent s%c$ con(erment necessaril' carries t$e !iscretion o( ,$om to a&&oint. 3ven on t$e &rete4t o( &rescribing t$e .%ali(ications o( t$e o((icer Congress ma' not ab%se s%c$ &o,er as to !ivest t$e a&&ointing a%t$orit' !irectl' or in!irectl' o( $is !iscretion to &ic+ $is o,n c$oice. Conse.%entl' ,$en t$e .%ali(ications &rescribe! b' Congress can onl' be met b' one in!ivi!%al s%c$ enactment e((ectivel' eliminates t$e !iscretion o( t$e a&&ointing &o,er to c$oose an! constit%tes an irreg%lar restriction on t$e &o,er o( a&&ointment. *n t$e case at bar ,$ile Congress ,ille! t$at t$e s%b9ect &osts be (ille! ,it$ a &resi!ential a&&ointee (or t$e (irst 'ear o( its o&erations (rom t$e e((ectivit' o( -.#. 7//7 t$e &roviso nevert$eless limits t$e a&&ointing a%t$orit' to onl' one eligible i.e. t$e inc%mbent Ma'or o( Olonga&o Cit'. )ince onl' one can .%ali(' (or t$e &osts in .%estion t$e =resi!ent is &recl%!e! (rom e4ercising $is !iscretion to c$oose ,$om to a&&oint. )%c$ s%&&ose! &o,er o( a&&ointment sans t$e essential element o( c$oice is no &o,er at all an! goes against t$e ver' nat%re itsel( o( a&&ointment. 6$ile it ma' be vie,e! t$at t$e &roviso merel' sets t$e .%ali(ications o( t$e o((icer !%ring t$e (irst 'ear o( o&erations o( )BM# i.e. $e m%st be t$e Ma'or o( Olonga&o Cit' it is mani(estl' an ab%se o( congressional a%t$orit' to &rescribe .%ali(ications ,$ere onl' one an! no ot$er can .%ali('. #ccor!ingl' ,$ile t$e con(erment o( t$e a&&ointing &o,er on t$e =resi!ent is a &er(ectl' vali! legislative act t$e &roviso limiting $is c$oice to one is certainl' an encroac$ment on $is &rerogative. )ince t$e ineligibilit' o( an elective o((icial (or a&&ointment remains all t$ro%g$o%t $is ten%re or !%ring $is inc%mbenc' $e ma' $o,ever resign (irst (rom $is elective &ost to cast o(( t$e constit%tionall'Dattac$e! !is.%ali(ication be(ore $e ma' be consi!ere! (it (or a&&ointment. #s long as $e is an inc%mbent an elective o((icial remains ineligible (or a&&ointment to anot$er &%blic o((ice. 6$ere as in t$e case o( res&on!ent Gor!on an inc%mbent elective o((icial ,as not,it$stan!ing $is ineligibilit' a&&ointe! to ot$er government &osts $e !oes not a%tomaticall' (or(eit $is elective o((ice nor remove $is ineligibilit' im&ose! b' t$e Constit%tion. On t$e contrar' since an inc%mbent elective o((icial is not eligible to t$e a&&ointive &osition $is a&&ointment or !esignation t$ereto cannot be vali! in vie, o( $is !is.%ali(ication or lac+ o( eligibilit'. 2$is &rovision s$o%l! not be con(%se! ,it$ )ec. 11 #rt. K* o( t$e Constit%tion ,$ere ";n<o )enator or Member o( t$e Ho%se o( -e&resentatives ma' $ol! an' ot$er o((ice or em&lo'ment in t$e Government . . . !%ring $is term ,it$o%t (or(eiting $is seat . . . ." 2$e !i((erence bet,een t$e t,o &rovisions is signi(icant in t$e sense t$at inc%mbent national legislators lose t$eir elective &osts onl' a(ter t$e' $ave been a&&ointe! to anot$er government o((ice ,$ile ot$er inc%mbent elective o((icials m%st (irst resign t$eir &osts be(ore t$e' can be a&&ointe! t$%s r%nning t$e ris+ o( losing t$e elective &ost as ,ell as not being a&&ointe! to t$e ot$er &ost. *t is t$ere(ore clear t$at ineligibilit' is not !irectl' relate! ,it$ (or(eit%re o( o((ice. ". . . . 2$e e((ect is .%ite !i((erent ,$ere it is e4&ressl' &rovi!e! b' la, t$at a &erson $ol!ing one o((ice s$all be ineligible to anot$er. )%c$ a &rovision is $el! to inca&acitate t$e inc%mbent o( an o((ice
180

(rom acce&ting or $ol!ing a secon! o((ice an! to ren!er $is election or a&&ointment to t$e latter o((ice voi! or voi!able "6$ere t$e constit%tion or stat%tes !eclare t$at &ersons $ol!ing one o((ice s$all be ineligible (or election or a&&ointment to anot$er o((ice eit$er generall' or o( a certain +in! t$e &ro$ibition $as been $el! to inca&acitate t$e inc%mbent o( t$e (irst o((ice to $ol! t$e secon! so t$at an' attem&t to $ol! t$e secon! is voi! #s inc%mbent elective o((icial res&on!ent Gor!on is ineligible (or a&&ointment to t$e &osition o( C$airman o( t$e Boar! an! C$ie( 34ec%tive o( )BM#A $ence $is a&&ointment t$ereto &%rs%ant to a legislative act t$at contravenes t$e Constit%tion cannot be s%staine!. He $o,ever remains Ma'or o( Olonga&o Cit' an! $is acts as )BM# o((icial are not necessaril' n%ll an! voi!A $e ma' be consi!ere! a !e (acto o((icer "one ,$ose acts t$o%g$ not t$ose o( a la,(%l o((icer t$e la, %&on &rinci&les o( &olic' an! 9%stice ,ill $ol! vali! so (ar as t$e' involve t$e interest o( t$e &%blic an! t$ir! &ersons ,$ere t$e !%ties o( t$e o((ice ,ere e4ercise! . . . . %n!er color o( a +no,n election or a&&ointment voi! beca%se t$e o((icer ,as not eligible or beca%se t$ere ,as a ,ant o( &o,er in t$e electing or a&&ointing bo!' or b' reason o( some !e(ect or irreg%larit' in its e4ercise s%c$ ineligibilit' ,ant o( &o,er or !e(ect being %n+no,n to t$e &%blic . . . . UorV %n!er color o( an election or a&&ointment b' or &%rs%ant to a &%blic %nconstit%tional la, be(ore t$e same is a!9%!ge! to be s%c$. Garvi a v. (ales /supra- see p. 00B1 Facts: Gali!o an! Galeon ,ere can!i!ates !%ring t$e 18 7an%ar' 1888 local elections (or t$e &osition o( ma'or in t$e M%nici&alit' o( GarciaDHernan!eB =rovince o( Bo$ol. Gali!o ,as &roclaime! !%l'D electe! Ma'or b' t$e M%nici&al Boar! o( Canvassers. Galeon t$en (ile! an election &rotest be(ore t$e -2C o( Bo$ol. #(ter $earing t$e sai! co%rt %&$el! t$e &roclamation o( Gali!o as t$e !%l'Delecte! Ma'or o( GarciaDHernan!eB b' a ma9orit' o( 11 votes. On a&&eal to t$e COM3L3C -2C !ecision ,as reverse! an! Galeon ,as !eclare! !%l'Delecte! ma'or b' a &l%ralit' o( C votes. M- !enie!. 2$e COM3L3C $el! t$at t$e (i(teen ;1C< ballots in t$e same &recinct containing t$e initial "C" a(ter t$e name "Gali!o" ,ere mar+e! ballots an! t$ere(ore invali!. 2$e COM3L3C sai! t$at ,$ere a ,or! or a letter rec%rs in a &attern or s'stem to mar+ an! i!enti(' ballots t$e ballots containing t$e same s$o%l! be re9ecte! as mar+e! ballots. Gali!o (ile! a &etition (or certiorari an! in9%nction. )C !ismisse! (or (ail%re o( &etitioner to com&l' ,it$ &ar. 0 o( t$e Co%rtHs Circ%lar No. 1D88 ,$ic$ re.%ires t$at a &etition s$all contain a veri(ie! statement o( t$e !ate ,$en notice o( t$e .%estione! 9%!gment or!er or resol%tion ,as receive! an! t$e !ate o( recei&t o( t$e !enial o( t$e motion (or reconsi!eration i( an' ,as (ile!. M!enie!. Gali!o (ile! &etition (or certiorari an! in9%nction ,it$ &ra'er (or a restraining or!er ,$ic$ contains t$e same allegations an! legal iss%es. 2-O iss%e! res&on!ents re.%ire! to (ile comment. *ss%es: 1. 6ON (inal !ecisions o( t$e COM3L3C are a&&ealable. 2$e COM3L3C $as e4cl%sive original 9%ris!iction over all contests relating to t$e elections ret%rns an! .%ali(ications o( all elective regional &rovincial an! cit' o((icials an! $as a&&ellate 9%ris!iction over all contests involving elective m%nici&al o((icials !eci!e! b' trial co%rts o( general 9%ris!iction or involving elective baranga' o((icials !eci!e! b' trial co%rts o( limite! 9%ris!iction. ;#rticle *J ;C< )ection / ;/< &aragra&$ 1 o( t$e 1887 Constit%tion<. 2$e (act t$at !ecisions (inal or!ers or r%lings o( t$e Commission on 3lections in contests involving elective m%nici&al an! baranga' o((ices are (inal e4ec%tor' an! not a&&ealable !oes not &recl%!e a reco%rse to t$is Co%rt b' ,a' o( a s&ecial civil action o( certiorari. M-. -3G#L#DO: *t is %n!erstoo! $o,ever t$at ,$ile t$ese !ecisions ,it$ res&ect to baranga' an! m%nici&al o((icials are (inal an! imme!iatel' e4ec%tor' an! t$ere(ore not a&&ealable t$at !oes not r%le o%t t$e &ossibilit' o( an
Gali o v. COM%L%C
18C

original s&ecial civil action (or certiorari &ro$ibition or man!am%s as t$e case ma' be %n!er -%le GC o( t$e -%les o( Co%rt. /. 6ON t$e COM3L3C committe! a grave ab%se o( !iscretion. 6e !o not $o,ever believe t$at t$e res&on!ent COM3L3C committe! grave ab%se o( !iscretion amo%nting to lac+ or e4cess o( 9%ris!iction in ren!ering t$e .%estione! !ecision. *t is settle! t$at t$e (%nction o( a ,rit o( certiorari is to +ee& an in(erior co%rt or trib%nal ,it$in t$e bo%n!s o( its 9%ris!iction or to &revent it (rom committing a grave ab%se o( !iscretion amo%nting to lac+ or e4cess o( 9%ris!iction. #s correctl' arg%e! b' &%blic res&on!ent COM3L3C it $as t$e in$erent &o,er to !eci!e an election contest on &$'sical evi!ence e.%it' la, an! 9%stice an! a&&l' establis$e! 9%ris&r%!ence in s%&&ort o( its (in!ings an! concl%sionsA an! t$at t$e e4tent to ,$ic$ s%c$ &rece!ents a&&l' rests on its !iscretion t$e e4ercise o( ,$ic$ s$o%l! not be controlle! %nless s%c$ !iscretion $as been ab%se! to t$e &re9%!ice o( eit$er &art'. QQ2$e recor!s !isclose t$at &rivate res&on!ent $a! alrea!' ass%me! t$e &osition o( Ma'or o( GarciaDHernan!eB as t$e !%l'D electe! ma'or o( t$e m%nici&alit' b' virt%e o( t$e COM3L3C !ecision. 2$e main &%r&ose o( &ro$ibition is to s%s&en! all action an! &revent t$e (%rt$er &er(ormance o( t$e act com&laine! o(. *n t$is lig$t t$e &etition at bar $as become moot an! aca!emic. Rivera v. COM%L%C Facts: -ivera an! Garcia ** ,ere can!i!ates (or t$e &osition o( Ma'or o( G%inobatan #lba' !%ring t$e local elections in 7an%ar' 1888. 2$e M%nici&al Boar! o( Canvassers &roclaime! -ivera as t$e !%l' electe! Ma'or b' a ma9orit' o( 15 votes. Garcia (ile! an election &rotest ,it$ t$e -2C. #(ter !%e $earing an! %&on consi!ering t$e re&ort o( a -evision Committee it $a! earlier create! t$e trial co%rt (o%n! Garcia to $ave obtaine! G 17G votes as against -iveraHs G ///. -ivera a&&eale! to t$e COM3L3C. 2$e COM3L3C s%staine! ,it$ mo!i(ication ;(o%n! Garcia lea!ing b' 1C1 instea! o( 1C0<. M- !enie! rea((irme! ,it$ mo!i(ication ;1/1 votes<. Garcia commence! to !isc$arge t$e !%ties an! (%nctions o( Ma'or o( G%inobatan on 15 October 1885 b' virt%e o( a ,rit o( e4ec%tion im&lementing t$e COM3L3C !ecision o( G )e&tember 1885. He contin%e! as ma'or %ntil 15 November 1885 ,$en $e ,as serve! notice o( t$is Co%rtHs tem&orar' restraining or!er iss%e! %&on -iveraHs motion. -ivera (ile! t$e &resent &etition on C October 1885 see+ing ann%lment o( t$e COM3L3C en banc !ecision ren!ere! in (avor o( res&on!ent Garcia. He also &ra'e! (or t$e iss%ance o( an or!er restraining t$e im&lementation o( t$e sai! 9%!gment arg%ing t$at t$e same $a! not 'et become (inal an! e4ec%tor' as o( t$e time t$is &etition ,as (ile!. He cites #rticle *JDC )ection / =ar. ;/< o( t$e 1887 Constit%tion in relation to =art K** -%le 18 )ection 1 o( t$e COM3L3C -%les o( =roce!%re. He also conten!s t$at since t$e COM3L3C !ecision o( G )e&tember 1885 $as not 'et become (inal an! e4ec%tor' t$e COM3L3C $as no a%t$orit' to iss%e t$e assaile! or!er an! ,rit o( e4ec%tion. =etitioner maintains (%rt$er t$at $e $as a &erio! o( t$irt' ;15< !a's (rom G )e&tember 1885 or %ntil G October 1885 ,it$in ,$ic$ to elevate t$e COM3L3C !ecision on certiorari to t$is Co%rt &%rs%ant to )ection 1 -%le 18 o( t$e COM3L3C -%les o( =roce!%re. He s%bmits t$at t$e .%estione! COM3L3C !ecision is not one t$at became (inal an! e4ec%tor' %nless restraine! b' t$is Co%rt as &rovi!e! %n!er )ection 1 -%le 18 o( t$e COM3L3C -%les as sai! r%le a&&lies onl' to "!ecisions in &reD&roclamation cases an! &etitions to !en' !%e co%rse or to !is.%ali(' a can!i!ate an! &ost&one or s%s&en! elections." Lastl' accor!ing to &etitioner )ection 11;a< o( -%le 18 ;(inalit' o( Comelec !ecisions or resol%tions< an! )ection 1 o( -%le 18 ;revie, b' t$e )%&reme Co%rt o( Comelec !ecisions or!ers an! r%lings< o( t$e COM3L3C -%les o( =roce!%re s$o%l! be rea! in t$e conte4t o( )ection 7 #rticle *JD# o( t$e Constit%tion ;)%&reme Co%rt a%t$orit' to revie, on certiorari a Comelec !ecision or!er or r%ling<. @&on t$e ot$er $an! res&on!ent Garcia conten!s t$at: 1. 2$e Constit%tion !eclares t$e !ecisions o( t$e COM3L3C on election contests involving elective m%nici&al an! baranga' o((icials to be (inal e4ec%tor' an! not a&&ealable ;#rticle *JDC )ec. / &ar. ;/< secon! sentence 1887 Constit%tion<. /. *n an earlier &etition (or certiorari (ile! b' -ivera ,it$ t$is Co%rt !oc+ete! as G.-. No. 8750G c$arging t$e -egional 2rial Co%rt o( grave ab%se o( !iscretion in Case No. 51D88 ,$erein t$e same iss%e no, raise! in t$is &etition ,as raise! b' -ivera t$is Co%rt !ismisse! t$e &etition (or lac+ o( merit on 7 Marc$ 1888.
18G

1. 2$e s%&&lemental gro%n! raise! b' &etitioner -ivera t$at t$e COM3L3C committe! grave ab%se o( !iscretion "b' not e4cl%!ing (rom t$e total votes o( Garcia at least ten ;15< votes ,$ic$ ,ere misa&&reciate! in GarciaHs (avor o%tsi!e o( t$ose ob9ecte! votes alrea!' r%le! %&on b' t$e COM3L3C" !oes not !eserve an' consi!eration. *( tr%e it is an error in 9%!gment correctible b' a&&eal not b' a &etition (or certiorari &%rs%ant to -%le GC )ection 1 o( t$e -%les o( Co%rt. *ss%es: 1. 6ON t$e !ecisions o( t$e COM3L3C in election contests involving elective m%nici&al an! baranga' o((icials being (inal an! e4ec%tor' an! not a&&ealable &recl%!e t$e (iling o( a s&ecial civil action o( certiorari. Gali!o Case. Flores v. COM3L3C: Obvio%sl' t$e &rovision o( #rticle *JDC )ection /;/< o( t$e Constit%tion t$at "!ecisions (inal or!ers or r%lings o( t$e Commission on election contests involving elective m%nici&al an! baranga' o((ices s$all be (inal e4ec%tor' an! not a&&ealable" a&&lies onl' to .%estions o( (act an! not o( la,. 2$at &rovision ,as not inten!e! to !ivest t$e )%&reme Co%rt o( its a%t$orit' to resolve .%estions o( la, as in$erent in t$e 9%!icial &o,er con(erre! %&on it b' t$e Constit%tion. 6e esc$e, a literal rea!ing o( t$at &rovision t$at ,o%l! contra!ict s%c$ a%t$orit'. /. 6ON t$e COM3L3C committe! a grave ab%se o( !iscretion. 2$e main t$r%st o( t$e &resent &etition (or certiorari is t$at t$e res&on!ent COM3L3C en banc committe! grave ab%se o( !iscretion ,$en it a((irme! t$e !ecision o( its First Division &rom%lgate! on / Ma' 1885 ann%lling t$e &roclamation o( t$e &etitioner as t$e !%l' electe! Ma'or o( G%inobatan #lba' an! ,$en it !i! not e4cl%!e (rom t$e total votes o( Garcia at least ten ;15< votes ,$ic$ ,ere allege!l' misa&&reciate! in GarciaHs (avor. 6e $ave closel' scr%tiniBe! t$e c$allenge! COM3L3C !ecision an! (in! t$at t$e sai! !ecision ,as not arrive! at ca&ricio%sl' or ,$imsicall' b' res&on!ent COM3L3C. # &ainsta+ing reDeval%ation o( t$e .%estione! G7 ballots ,as ma!e b' t$e COM3L3C en banc. *n (act 10 ballots originall' a!9%!icate! in GarciaHs (avor ,ere overr%le! b' t$e Commission en banc t$%s re!%cing t$e n%mber o( votes in $is (avor to 880 votes o%t o( t$e / 00C conteste! ballots. On t$e ot$er $an! 1G ballots ,ere a!!e! in -iveraHs (avor t$%s increasing t$e votes in $is (avor to 1 587 votes.
Moreover t$e a&&reciation an! reDeval%ation o( ballots are

(act%al !eterminations. *t is settle! t$at in a &etition (or certiorari (in!ings o( (act o( a!ministrative bo!ies are (inal %nless grave ab%se o( !iscretion $as marre! s%c$ (act%al !eterminations. 6e (in! none in t$is case. Bor3a v. COM%L%C Facts: Ca&co ,as electe! viceDma'or o( =ateros on 7an%ar' 18 1888 (or a term en!ing 7%ne 15 188/. On )e&tember / 1888 $e became ma'or b' o&eration o( la, %&on t$e !eat$ o( t$e inc%mbent Bor9a. On Ma' 11 188/ $e ran an! ,as electe! ma'or (or a term o( t$ree 'ears ,$ic$ en!e! on 7%ne 15 188C. On Ma' 8 188C $e ,as reelecte! ma'or (or anot$er term o( t$ree 'ears en!ing 7%ne 15 1888. On Marc$ /7 1888 Ca&co (ile! a certi(icate o( can!i!ac' (or ma'or o( =ateros relative to t$e Ma' 11 1888 elections. Bor9a 7r. ,$o ,as also a can!i!ate (or ma'or so%g$t Ca&co>s !is.%ali(ication on t$e t$eor' t$at t$e latter ,o%l! $ave alrea!' serve! as ma'or (or t$ree consec%tive terms b' 7%ne 15 1888 an! ,o%l! t$ere(ore be ineligible to serve (or anot$er term a(ter t$at. On #&ril 15 1888 t$e )econ! Division o( t$e COM3L3C r%le! in (avor o( Bor9a an! !eclare! Ca&co !is.%ali(ie! (rom r%nning (or reelection as ma'or o( =ateros. Ho,ever on motion o( &rivate res&on!ent t$e COM3L3C en banc voting CD/ reverse! t$e !ecision an! !eclare! Ca&co eligible to r%n (or ma'or in t$e Ma' 11 1888 elections. 2$e ma9orit' state! in its !ecision: *n bot$ t$e Constit%tion an! t$e LGC t$e t$reeDterm limitation re(ers to t$e term o( o((ice (or ,$ic$ t$e local o((icial ,as electe!. *t ma!e no re(erence to s%ccession to an o((ice to ,$ic$ $e ,as not electe!. )%ccession into o((ice is not co%nte! as 1 term (or &%r&oses o( t$e com&%tation o( t$e t$reeDterm limitation %n!er t$e Constit%tion an! t$e LGC. Ca&co ,on an! ,as &roclaime! electe! b' t$e M%nici&al Boar! o( Canvassers. 2$is is a &etition (or certiorari bro%g$t to set asi!e t$e resol%tion !ate! Ma' 7 1888 o( t$e COM3L3C an! to see! a !eclaration t$at Ca&co is !is.%ali(ie! to serve anot$er term as Ma'or o( =ateros Metro Manila. *ss%e: 6ON a viceDma'or ,$o s%ccee!s to t$e o((ice o( ma'or b' o&eration o( la, an! serves t$e remain!er o( t$e term is consi!ere! to $ave serve! a term in t$at o((ice (or t$e &%r&ose o( t$e t$reeDterm limit.
187
Mabelle O. Nebres | Local Governments Case Digests #rticle J c8 o( t$e Constit%tion &rovi!es: 2$e term o( o((ice
o( elective local o((icials e4ce&t baranga' o((icials ,$ic$ s$all be !etermine! b' la, s$all be t$ree 'ears an! no s%c$ o((icial s$all serve (or more t$an t$ree consec%tive terms. Kol%ntar' ren%nciation o( t$e o((ice (or an' lengt$ o( time s$all not be consi!ere! as an interr%&tion in t$e contin%it' o( $is service (or t$e (%ll term (or ,$ic$ $e ,as electe!. 2$is &rovision is restate! in c01;b< o( t$e LGC ;-.#. No. 71G5<: No local elective o((icial s$all serve (or more t$an t$ree ;1< consec%tive terms in t$e same &osition. Kol%ntar' ren%nciation o( t$e o((ice (or an' lengt$ o( time s$all not be consi!ere! as an interr%&tion in t$e contin%it' o( service (or t$e (%ll term (or ,$ic$ t$e elective o((icial concerne! ,as electe!. 2,o i!eas t$%s emerge (rom a consi!eration o( t$e &rocee!ings o( t$e Constit%tional Commission. 2$e (irst is t$e notion o( service o( term !erive! (rom t$e concern abo%t t$e acc%m%lation o( &o,er as a res%lt o( a &rolonge! sta' in o((ice. 2$e secon! is t$e i!ea o( election !erive! (rom t$e concern t$at t$e rig$t o( t$e &eo&le to c$oose t$ose ,$om t$e' ,is$ to govern t$em be &reserve!. *n !isc%ssing term limits t$e !ra(ters o( t$e Constit%tion !i! so on t$e ass%m&tion t$at t$e o((icials concerne! ,ere serving b' reason o( reelection. *n!ee! a (%n!amental tenet o( re&resentative !emocrac' is t$at t$e &eo&le s$o%l! be allo,e! to c$oose ,$om t$e' &lease to govern t$em. 2o bar t$e election o( a local o((icial beca%se $e $as alrea!' serve! t$ree terms alt$o%g$ t$e (irst as a res%lt o( s%ccession b' o&eration o( la, rat$er t$an election ,o%l! t$ere(ore be to violate t$is &rinci&le. )econ! not onl' $istorical e4amination b%t te4t%al anal'sis as ,ell s%&&orts t$e r%ling o( t$e COM3L3C t$at #rt. J c8 contem&lates service b' local o((icials (or t$ree consec%tive terms as a res%lt o( election. 2$e (irst sentence s&ea+s o( Et$e term o( o((ice o( elective local o((icialsF an! bars Es%c$ o((icialUsVF (rom serving (or more t$an t$ree consec%tive terms. 2$e secon! sentence in e4&laining ,$en an elective local o((icial ma' be !eeme! to $ave serve! $is (%ll term o( o((ice states t$at Evol%ntar' ren%nciation o( t$e o((ice (or an' lengt$ o( time s$all not be consi!ere! as an interr%&tion in t$e contin%it' o( $is service (or t$e (%ll term (or ,$ic$ $e ,as electe!.F 2$e term serve! m%st t$ere(ore be one E(or ,$ic$ Ut$e o((icial concerne!V ,as electe!.F 2$e &%r&ose o( t$is &rovision is to &revent a circ%mvention o( t$e limitation on t$e n%mber o( terms an elective o((icial ma' serve. Conversel' i( $e is not serving a term (or ,$ic$ $e ,as electe! beca%se $e is sim&l' contin%ing t$e service o( t$e o((icial $e s%ccee!s s%c$ o((icial cannot be consi!ere! to $ave (%ll' serve! t$e term no, ,it$stan!ing $is vol%ntar' ren%nciation o( o((ice &rior to its e4&iration. 2$ere is a !i((erence bet,een t$e case o( a viceDma'or an! t$at o( a member o( t$e Ho%se o( -e&resentatives ,$o s%ccee!s anot$er ,$o !ies resigns becomes inca&acitate! or is remove! (rom o((ice. 2$e viceDma'or s%ccee!s to t$e ma'ors$i& b' o&eration o( la,. On t$e ot$er $an! t$e -e&resentative is electe! to (ill t$e vacanc'. *n a real sense t$ere(ore s%c$ -e&resentative serves a term (or ,$ic$ $e ,as electe!. #s t$e &%r&ose o( t$e constit%tional &rovision is to limit t$e rig$t ot be electe! an! to serve in Congress $is service o( t$e %ne4&ire! term is rig$tl' co%nte! as $is (irst term. -at$er t$an re(%te ,$at ,e believe to be t$e inten!ment o( #rt. J c8 ,it$ regar! to elective local o((icials t$e case o( a -e&resentative ,$o s%ccee!s anot$er con(irms t$e t$eor'. =etitioner also cites #rt. K** c0 o( t$e Constit%tion ,$ic$ &rovi!es (or s%ccession o( t$e KiceD=resi!ent to t$e =resi!enc' in case o( vacanc' in t$at o((ice. #(ter stating t$at E2$e =resi!ent s$all not be eligible (or an' reelection F t$is &rovision sa's t$at ENo &erson ,$o $as s%ccee!e! as =resi!ent an! $as serve! as s%c$ (or more t$an (o%r 'ears s$all be .%ali(ie! (or election to t$e same o((ice at an' time.F =etitioner conten!s t$at b' analog' t$e viceDma'or s$o%l! li+e,ise be consi!ere! to $ave serve! a (%ll term as ma'or i( $e s%ccee!s to t$e latter>s o((ice an! serves (or t$e remain!er o( t$e term. 2$e (ramers o( t$e Constit%tion incl%!e! s%c$ a &rovision beca%se ,it$o%t it t$e KiceD=resi!ent ,$o sim&l' ste&s into t$e =resi!enc' b' s%ccession ,o%l! be .%ali(ie! to r%n (or =resi!ent even i( $e $as occ%&ie! t$at o((ice (or more t$an (o%r 'ears. 2$e absence o( a similar &rovision in #rt. J c8 on elective local o((icials t$ro,s in bol! relie( t$e !i((erence bet,een t$e t,o cases. *t %n!erscores t$e constit%tional intent to cover onl' t$e terms o( o((ice to ,$ic$ one ma' $ave been electe! (or &%r&ose o( t$e t$reeD
188

term limit on local elective o((icials !isregar!ing (or t$is &%r&ose service b' a%tomatic s%ccession. 2$ere is anot$er reason ,$' t$e KiceD=resi!ent ,$o s%ccee!s to t$e =resi!enc' an! serves in t$at o((ice (or more t$an (o%r 'ears is ineligible (or election as =resi!ent. 2$e KiceD=resi!ent is electe! &rimaril' to s%ccee! t$e =resi!ent in t$e event o( t$e latter>s !eat$ &ermanent !isabilit' removal or resignation. 6$ile $e ma' be a&&ointe! to t$e cabinet $is becoming so is entirel' !e&en!ent on t$e goo! graces o( t$e =resi!ent. *n r%nning (or KiceD=resi!ent $e ma' t$%s be sai! to also see+ t$e =resi!enc'. For t$eir &art t$e electors li+e,ise c$oose as KiceD=resi!ent t$e can!i!ate ,$o t$e' t$in+ can (ill t$e =resi!enc' in t$e event it becomes vacant. Hence service in t$e &resi!enc' (or more t$an (o%r 'ears ma' rig$tl' be consi!ere! as service (or a (%ll term. 2$is is not so in t$e case o( t$e viceDma'or. @n!er t$e LGC $e is t$e &resi!ing o((icer o( t$e sangg%nian an! $e a&&oints all o((icials an! em&lo'ees o( s%c$ local assembl'. He $as !istinct &o,ers an! (%nctions s%ccession to ma'ors$i& in t$e event o( vacanc' t$erein being onl' one o( t$em. *t cannot be sai! o( $im as m%c$ as o( t$e KiceD=resi!ent in t$e event o( a vacanc' in t$e =resi!enc' t$at in r%nning (or viceDma'or $e also see+s t$e ma'ors$i&. His ass%m&tion o( t$e ma'ors$i& in t$e event o( vacanc' is more a matter o( c$ance t$an o( !esign. Hence $is service in t$at o((ice s$o%l! not be co%nte! in t$e a&&lication o( an' term limit. 2o reca&it%late t$e term limit (or elective local o((icials m%st be ta+en to re(er to t$e rig$t to be electe! as ,ell as t$e rig$t to serve in t$e same elective &osition. Conse.%entl' it is not eno%g$ t$at an in!ivi!%al $as serve! t$ree consec%tive terms in an elective local o((ice $e m%st also $ave been electe! to t$e same &osition (or t$e same n%mber o( times be(ore t$e !is.%ali(ication can a&&l'. QQCase No. 1. )%&&ose # is a viceDma'or ,$o becomes ma'or b' reason o( t$e !eat$ o( t$e inc%mbent. )i4 mont$s be(ore t$e ne4t election $e resigns an! is t,ice electe! t$erea(ter. Can $e r%n again (or ma'or in t$e ne4t election. :es beca%se alt$o%g$ $e $as alrea!' (irst serve! as ma'or b' s%ccession an! s%bse.%entl' resigne! (rom o((ice be(ore t$e (%ll term e4&ire! $e $as not act%all' serve! t$ree (%ll terms in all (or t$e &%r&ose o( a&&l'ing t$e term limit. @n!er #rt. J c8 vol%ntar' ren%nciation o( t$e o((ice is not consi!ere! as an interr%&tion in t$e contin%it' o( $is service (or t$e (%ll term onl' i( t$e term is one E(or ,$ic$ $e ,as electe!.F )ince # is onl' com&leting t$e service o( t$e term (or ,$ic$ t$e !ecease! an! not $e ,as electe!. # cannot be consi!ere! to $ave com&lete! one term. His resignation constit%tes an interr%&tion o( t$e (%ll term. QQCase No. /. )%&&ose B is electe! Ma'or an! !%ring $is (irst term $e is t,ice s%s&en!e! (or miscon!%ct (or a total o( 1 'ear. *( $e is t,ice reelecte! a(ter t$at can $e r%n (or one more term in t$e ne4t electionT :es beca%se $e $as serve! onl' t,o (%ll terms s%ccessivel'. *n bot$ cases t$e ma'or is entitle! to r%n (or reelection beca%se t$e t,o con!itions (or t$e a&&lication o( t$e !is.%ali(ication &rovisions $ave not conc%rre! namel' t$at t$e local o((icial concerne! $as been electe! t$ree consec%tive times an! t$at $e $as (%ll' serve! t$ree consec%tive terms. *n t$e (irst case even i( t$e local o((icial is consi!ere! to $ave serve! t$ree (%ll terms not,it$stan!ing $is resignation be(ore t$e en! o( t$e (irst term t$e (act remains t$at $e $as not been electe! t$ree times. *n t$e secon! case t$e local o((icial $as been electe! t$ree consec%tive times b%t $e $as not (%ll' serve! t$ree consec%tive terms. QQCase No. 1. 2$e case o( viceDma'or C ,$o becomes ma'or b' s%ccession involves a total (ail%re o( t$e t,o con!itions to conc%r (or t$e &%r&ose o( a&&l'ing #rt. J c8. )%&&ose $e is t,ice electe! a(ter t$at term is $e .%ali(ie! to r%n again in t$e ne4t electionT :es beca%se $e ,as not electe! to t$e o((ice o( t$e ma'or in t$e (irst term b%t sim&l' (o%n! $imsel( t$r%st into it b' o&eration o( la,. Neit$er $a! $e serve! t$e (%ll term beca%se $e onl' contin%e! t$e service interr%&te! b' t$e !eat$ o( t$e !ecease! ma'or. 2o consi!er C in t$e t$ir! case to $ave serve! t$e (irst term in (%ll an! t$ere(ore ineligible to r%n a t$ir! time (or reelection ,o%l! be not onl' to (alsi(' realit' b%t also to %n!%l' restrict t$e rig$t o( t$e &eo&le to c$oose ,$om t$e' ,is$ to govern t$em. *( t$e viceD ma'or t%rns o%t to be a ba! ma'or t$e &eo&le can reme!' t$e sit%ation b' sim&l' not reelecting $im (or anot$er term. B%t i( on t$e ot$er $an! $e &roves to be a goo! ma'or t$ere ,ill be no ,a' t$e &eo&le can ret%rn $im to o((ice ;even i( it is 9%st t$e t$ir! time $e is stan!ing (or reelection< i( $is service o( t$e (irst term is co%nte! as one o( t$e &%r&ose o( a&&l'ing t$e term limit. 2o consi!er C as eligible (or reelection ,o%l! be in accor! ,it$ t$e %n!erstan!ing o( t$e Constit%tional Commission t$at ,$ile t$e
188

&eo&le s$o%l! be &rotecte! (rom t$e evils t$at a mono&ol' o( &olitical &o,er ma' bring abo%t care s$o%l! be ta+en t$at t$eir (ree!om o( c$oice is not %n!%l' c%rtaile!. Lonzani a v. COM%L%C Facts: LonBani!a ,as !%l' electe! an! serve! t,o consec%tive terms as m%nici&al ma'or o( )an #ntonio Zambales &rior to t$e Ma' 8 188C elections. *n t$e Ma' 188C elections LonBani!a ran (or ma'or o( )an #ntonio Zambales an! ,as again &roclaime! ,inner. He ass%me! o((ice an! !isc$arge! t$e !%ties t$ereo(. His &roclamation in 188C ,as $o,ever conteste! b' $is t$en o&&onent 7%an #lveB ,$o (ile! an election &rotest be(ore t$e -egional 2rial Co%rt o( Zambales ,$ic$ in a !ecision !ate! 7an%ar' 8 1887 !eclare! a (ail%re o( elections. #ccor!ingl' t$e o((ice o( t$e ma'or o( t$e M%nici&alit' o( )an #ntonio Zambales is $ereb' !eclare! vacant. On a&&eal t$e COM3L3C !eclare! #lveB t$e !%l' electe! ma'or o( )an #ntonio Zambales b' &l%ralit' o( votes cast in $is (avor totaling 1 7/5 votes as against 1 088 votes (or LonBani!a. On Febr%ar' /7 1888 t$e COM3L3C iss%e! a ,rit o( e4ec%tion or!ering LonBani!a to vacate t$e &ost ,$ic$ $e obe'e! an! #lveB ass%me! o((ice (or t$e remain!er o( t$e term. *n t$e Ma' 11 1888 elections LonBani!a again (ile! $is certi(icate o( can!i!ac' (or ma'or o( )an #ntonio. On #&ril /1 1888 $is o&&onent 3%(emio M%li timel' (ile! a &etition to !is.%ali(' LonBani!a (rom r%nning (or ma'or o( )an #ntonio in t$e 1888 elections on t$e gro%n! t$at $e $a! serve! t$ree consec%tive terms in t$e same &ost. On Ma' 11 1888 &etitioner LonBani!a ,as &roclaime! ,inner. On Ma' /1 1888 t$e First Division o( t$e COM3L3C iss%e! t$e .%estione! resol%tion granting t$e &etition (or !is.%ali(ication %&on a (in!ing t$at LonBani!a $a! serve! t$ree consec%tive terms as ma'or o( )an #ntonio Zambales an! $e is t$ere(ore !is.%ali(ie! to r%n (or t$e same &ost (or t$e (o%rt$ time. 2$e COM3L3C (o%n! t$at LonBani!aHs ass%m&tion o( o((ice b' virt%e o( $is &roclamation in Ma' 188C alt$o%g$ $e ,as later %nseate! be(ore t$e e4&iration o( t$e term s$o%l! be co%nte! as service (or one (%ll term in com&%ting t$e t$ree term limit %n!er t$e Constit%tion an! t$e LGC. 2$e (in!ing o( t$e COM3L3C First Division ,as a((irme! b' t$e COM3L3C 3n Banc in a resol%tion !ate! #%g%st 11 1888. *ss%e: 6ON LonBani!aHs ass%m&tion o( o((ice as ma'or o( )an #ntonio Zambales (rom Ma' 188C to Marc$ 1888 ma' be consi!ere! as service o( one (%ll term (or t$e &%r&ose o( a&&l'ing t$e t$reeDterm limit (or elective local government o((icials. )ec. 8 #rt. J o( t$e Constit%tion &rovi!es: 2$e term o( o((ice o( elective local o((icials e4ce&t baranga' o((icials ,$ic$ s$all be !etermine! b' la, s$all be t$ree 'ears an! no s%c$ o((icials s$all serve (or more t$an t$ree consec%tive terms. Kol%ntar' ren%nciation o( t$e o((ice (or an' lengt$ o( time s$all not be consi!ere! as an interr%&tion in t$e contin%it' o( $is service (or t$e (%ll term (or ,$ic$ $e ,as electe!. )ec. 01 o( t$e LGC ;-.#. No. 71G5< restates t$e same r%le: No local elective o((icial s$all serve (or more t$an t$ree consec%tive terms in t$e same &osition. Kol%ntar' ren%nciation o( t$e o((ice (or an' lengt$ o( time s$all not be consi!ere! as an interr%&tion in t$e contin%it' o( service (or t$e (%ll term (or ,$ic$ t$e elective o((icial concerne! ,as electe!. 2$e recor!s o( t$e 188G Constit%tional Commission s$o, t$at t$e t$reeDterm limit ,$ic$ is no, embo!ie! in section 8 #rt. J o( t$e Constit%tion ,as initiall' &ro&ose! to be an absol%te bar to an' elective local government o((icial (rom r%nning (or t$e same &osition a(ter serving t$ree consec%tive terms. 2$e sai! !is.%ali(ication ,as &rimaril' inten!e! to (orestall t$e acc%m%lation o( massive &olitical &o,er b' an elective local government o((icial in a given localit' in or!er to &er&et%ate $is ten%re in o((ice. 2$e !elegates also consi!ere! t$e nee! to broa!en t$e c$oices o( t$e electorate o( t$e can!i!ates ,$o ,ill r%n (or o((ice an! to in(%se ne, bloo! in t$e &olitical arena b' !is.%ali('ing o((icials (rom r%nning (or t$e same o((ice a(ter a term o( nine 'ears. 2$e ma'or ,as com&are! b' some !elegates to t$e =resi!ent o( t$e -e&%blic as $e is a &o,er(%l c$ie( e4ec%tive o( $is &olitical territor' an! is most li+el' to (orm a &olitical !'nast'. 2$e !ra(ters $o,ever recogniBe! an! too+ note o( t$e (act t$at some local government o((icials r%n (or o((ice be(ore t$e' reac$ (ort' 'ears o( ageA t$%s to &er&et%all' bar t$em (rom r%nning (or t$e same o((ice a(ter serving nine consec%tive 'ears ma' !e&rive t$e &eo&le o( .%ali(ie! can!i!ates to c$oose (rom. #s (inall' vote! %&on it ,as agree! t$at an elective local government o((icial s$o%l! be barre! (rom r%nning (or t$e
/55

same &ost a(ter t$ree consec%tive terms. #(ter a $iat%s o( at least one term $e ma' again r%n (or t$e same o((ice. Bor9a Case: 2$is Co%rt $el! t$at t$e t,o con!itions (or t$e a&&lication o( t$e !is.%ali(ication m%st conc%r: 1< t$at t$e o((icial concerne! $as been electe! (or t$ree consec%tive terms in t$e same local government &ost an! /< t$at $e $as (%ll' serve! t$ree consec%tive terms. *t state!: 2o reca&it%late t$e term limit (or elective local o((icials m%st be ta+en to re(er to t$e rig$t to be electe! as ,ell as t$e rig$t to serve in t$e same elective &osition. Conse.%entl' it is not eno%g$ t$at an in!ivi!%al $as serve! t$ree consec%tive terms in an elective local o((ice $e m%st also $ave been electe! to t$e same &osition (or t$e same n%mber o( times be(ore t$e !is.%ali(ication can a&&l'. *t is not !is&%te! t$at t$e &etitioner ,as &revio%sl' electe! an! serve! t,o consec%tive terms as ma'or o( )an #ntonio Zambales &rior to t$e Ma' 188C ma'oral elections. *n t$e Ma' 188C elections $e again ran (or ma'or o( )an #ntonio Zambales an! ,as &roclaime! ,inner. He ass%me! o((ice an! !isc$arge! t$e rig$ts an! !%ties o( ma'or %ntil Marc$ 1888 ,$en $e ,as or!ere! to vacate t$e &ost b' reason o( t$e COM3L3C !ecision !ate! November 11 1887 on t$e election &rotest against t$e &etitioner ,$ic$ !eclare! $is o&&onent 7%an #lveB t$e !%l' electe! ma'or o( )an #ntonio. #lveB serve! t$e remaining &ortion o( t$e 188CD1888 ma'oral term. 2$e t,o re.%isites (or t$e a&&lication o( t$e t$ree term r%le are absent. D D First t$e &etitioner cannot be consi!ere! as $aving been !%l' electe! to t$e &ost in t$e Ma' 188C elections an! secon! t$e &etitioner !i! not (%ll' serve t$e 188CD1888 ma'oral term b' reason o( invol%ntar' relin.%is$ment o( o((ice. #(ter a reDa&&reciation an! revision o( t$e conteste! ballots t$e COM3L3C itsel( !eclare! b' (inal 9%!gment t$at &etitioner LonBani!a lost in t$e Ma' 188C ma'oral elections an! $is &revio%s &roclamation as ,inner ,as !eclare! n%ll an! voi!. His ass%m&tion o( o((ice as ma'or cannot be !eeme! to $ave been b' reason o( a vali! election b%t b' reason o( a voi! &roclamation. *t $as been re&eate!l' $el! b' t$is co%rt t$at a &roclamation s%bse.%entl' !eclare! voi! is no &roclamation at all C an! ,$ile a &roclaime! can!i!ate ma' ass%me o((ice on t$e strengt$ o( t$e &roclamation o( t$e Boar! o( Canvassers $e is onl' a &res%m&tive ,inner ,$o ass%mes o((ice s%b9ect to t$e (inal o%tcome o( t$e election &rotest. G =etitioner LonBani!a !i! not serve a term as ma'or o( )an #ntonio Zambales (rom Ma' 188C to Marc$ 1888 beca%se $e ,as not !%l' electe! to t$e &ostA $e merel' ass%me! o((ice as &res%m&tive ,inner ,$ic$ &res%m&tion ,as later overt%rne! b' t$e COM3L3C ,$en it !eci!e! ,it$ (inalit' t$at LonBani!a lost in t$e Ma' 188C ma'oral elections. )econ! t$e &etitioner cannot be !eeme! to $ave serve! t$e Ma' 188C to 1888 term beca%se $e ,as or!ere! to vacate $is &ost be(ore t$e e4&iration o( t$e term. 2$e res&on!entsH contention t$at t$e &etitioner s$o%l! be !eeme! to $ave serve! one (%ll term (rom Ma' 188CD1888 beca%se $e serve! t$e greater &ortion o( t$at term $as no legal basis to s%&&ort itA it !isregar!s t$e secon! re.%isite (or t$e a&&lication o( t$e !is.%ali(ication i.e. t$at $e $as (%ll' serve! t$ree consec%tive terms. 2$e secon! sentence o( t$e constit%tional &rovision %n!er scr%tin' states "Kol%ntar' ren%nciation o( o((ice (or an' lengt$ o( time s$all not be consi!ere! as an interr%&tion in t$e contin%it' o( service (or t$e (%ll term (or ,$ic$ $e ,as electe!. "2$e clear intent o( t$e (ramers o( t$e constit%tion to bar an' attem&t to circ%mvent t$e t$reeDterm limit b' a vol%ntar' ren%nciation o( o((ice an! at t$e same time res&ect t$e &eo&leHs c$oice an! grant t$eir electe! o((icial (%ll service o( a term is evi!ent in t$is &rovision. Kol%ntar' ren%nciation o( a term !oes not cancel t$e reno%nce! term in t$e com&%tation o( t$e t$ree term limitA conversel' invol%ntar' severance (rom o((ice (or an' lengt$ o( time s$ort o( t$e (%ll term &rovi!e! b' la, amo%nts to an interr%&tion o( contin%it' o( service. 2$e &etitioner vacate! $is &ost a (e, mont$s be(ore t$e ne4t ma'oral elections not b' vol%ntar' ren%nciation b%t in com&liance ,it$ t$e legal &rocess o( ,rit o( e4ec%tion iss%e! b' t$e COM3L3C to t$at e((ect. )%c$ invol%ntar' severance (rom o((ice is an interr%&tion o( contin%it' o( service an! t$%s t$e &etitioner !i! not (%ll' serve t$e 188CD1888 ma'oral term. =etitioner ,as not t$e !%l' electe! ma'or an! t$at $e !i! not $ol! o((ice (or t$e (%ll termA $ence $is ass%m&tion o( o((ice (rom 188C to Marc$ 1888 cannot be co%nte! as a term (or &%r&oses o( com&%ting t$e t$ree term limit. 2$e -esol%tion o( t$e COM3L3C (in!ing $im !is.%ali(ie! on t$is
/51

gro%n! to r%n in t$e Ma' 1888 ma'oral elections s$o%l! t$ere(ore be set asi!e. 6ON t$e !ela' in resolving t$e election &rotest bet,een &etitioner an! $is t$en o&&onent #lveB ,$ic$ too+ ro%g$l' abo%t t$ree 'ears an! res%ltantl' e4ten!e! t$e &etitioners inc%mbenc' in an o((ice to ,$ic$ $e ,as not la,(%ll' electe!. )%c$ !ela' cannot be im&%te! to t$e &etitioner. 2$ere is no s&eci(ic allegation nor &roo( t$at t$e !ela' ,as !%e to an' &olitical mane%vering on $is &art to &rolong $is sta' in o((ice. Moreover &rotestant #lveB ,as not ,it$o%t legal reco%rse to move (or t$e earl' resol%tion o( t$e election &rotest ,$ile it ,as &en!ing be(ore t$e regional trial co%rt or to (ile a motion (or t$e e4ec%tion o( t$e regional trial co%rtHs !ecision !eclaring t$e &osition o( ma'or vacant an! or!ering t$e viceDma'or to ass%me o((ice ,$ile t$e a&&eal ,as &en!ing ,it$ t$e COM3L3C. )%c$ !ela' ,$ic$ is not $ere s$o,n to $ave intentionall' so%g$t b' t$e &etitioner to &rolong $is sta' in o((ice cannot serve as basis to bar $is rig$t to be electe! an! to serve $is c$osen local government &ost in t$e s%ccee!ing ma'oral election. 6ON t$e COM3L3C cease! to $ave 9%ris!iction over t$e &etition (or !is.%ali(ication a(ter $e ,as &roclaime! ,inner. 2$e instant &etition (or !is.%ali(ication ,as (ile! on #&ril /1 1888 or be(ore t$e Ma' 1888 elections an! ,as resolve! on Ma' /1 1888 or a(ter t$e &etitionerHs &roclamation. *t ,as $el! in t$e case o( )%nga vs. COM3L3C an! 2rini!a! t$at t$e &roclamation nor t$e ass%m&tion o( o((ice o( a can!i!ate against ,$om a &etition (or !is.%ali(ication is &en!ing be(ore t$e COM3L3C !oes not !ivest t$e COM3L3C o( 9%ris!iction to contin%e $earing t$e case an! to resolve it on t$e merits. )ec. G o( -# GG0G s&eci(icall' man!ates t$at: an' can!i!ate ,$o $as been !eclare! b' (inal 9%!gment to be !is.%ali(ie! s$all not be vote! (or an! t$e votes cast (or $im s$all not be co%nte!. *( (or an' reason a can!i!ate is not !eclare! b' (inal 9%!gment be(ore an election to be !is.%ali(ie! an! $e is vote! (or an! receives t$e ,inning n%mber o( votes in s%c$ election t$e co%rt or commission s$all contin%e ,it$ t$e trial an! $earing o( t$e action in.%ir' or &rotest an! %&on motion o( t$e com&lainant or an' intervenor ma' !%ring t$e &en!enc' t$ereo( or!er t$e s%s&ension o( t$e &roclamation o( s%c$ can!i!ate ,$enever t$e evi!ence o( $is g%ilt is strong. 2$is co%rt $el! t$at t$e clear legislative intent is t$at t$e COM3L3C s$o%l! contin%e t$e trial an! $earing o( t$e !is.%ali(ication case to its concl%sion i.e. %ntil 9%!gment is ren!ere!. 2$e o%trig$t !ismissal o( t$e &etition (or !is.%ali(ication (ile! be(ore t$e election b%t ,$ic$ remaine! %nresolve! a(ter t$e &roclamation o( t$e can!i!ate so%g$t to be !is.%ali(ie! ,ill %n!%l' re,ar! t$e sai! can!i!ate an! ma' enco%rage $im to em&lo' !ela'ing tactics to im&e!e t$e resol%tion o( t$e &etition %ntil a(ter $e $as been &roclaime!. 2$e (act t$at 2rini!a! ,as alrea!' &roclaime! an! $a! ass%me! t$e &osition o( ma'or !i! not !ivest t$e COM3L3C o( a%t$orit' an! 9%ris!iction to contin%e t$e $earing an! event%all' !eci!e t$e !is.%ali(ication case. #g%am v. COM3L3C: 2ime an! again t$is Co%rt $as given its im&rimat%r on t$e &rinci&le t$at COM3L3C is ,it$ a%t$orit' to ann%l an' canvass an! &roclamation ,$ic$ ,as illegall' ma!e. 2$e (act t$at a can!i!ate &roclaime! $as ass%me! o((ice ,e $ave sai! is no bar to t$e e4ercise o( s%c$ &o,er. *t o( co%rse ma' not be availe! o( ,$ere t$ere $as been a vali! &roclamation. )ince &rivate res&on!entHs &etition be(ore t$e COM3L3C is &recisel' !irecte! at t$e ann%lment o( t$e canvass an! &roclamation ,e &erceive t$at in.%ir' into t$is iss%e is ,it$in t$e area allocate! b' t$e Constit%tion an! la, to COM3L3C . . . -eall' ,ere a victim o( a &roclamation to be &recl%!e! (rom c$allenging t$e vali!it' t$ereo( a(ter t$at &roclamation an! t$e ass%m&tion o( o((ice t$ere%n!er bane(%l e((ects ma' easil' s%&ervene. =%r&ose o( a !is.%ali(ication &rocee!ing : to &revent t$e can!i!ate (rom r%nning or i( electe! (rom serving or to &rosec%te $im (or violation o( t$e election la,s. Obvio%sl' t$e (act t$at a can!i!ate $as been &roclaime! electe! !oes not signi(' t$at $is !is.%ali(ication is !eeme! con!one! an! ma' no longer be t$e s%b9ect o( a se&arate investigation . A ormeo v. COM%L%C Facts: #!ormeo an! 2alaga ,ere t$e onl' can!i!ates ,$o (ile! t$eir certi(icates o( can!i!ac' (or ma'or o( L%cena Cit' in t$e Ma' 10 /551 elections. 2alaga ,as t$en t$e inc%mbent ma'or. 2alaga
/.
/.
/5/

,as electe! ma'or in Ma' 188/. He serve! t$e (%ll term. #gain $e ,as reDelecte! in 188CD1888. *n t$e election o( 1888 $e lost to 2agarao. *n t$e recall election o( Ma' 1/ /555 $e again ,on an! serve! t$e %ne4&ire! term o( 2agarao %ntil 7%ne 15 /551. On Marc$ / /551 #!ormeo (ile! ,it$ t$e O((ice o( t$e =rovincial 3lection )%&ervisor L%cena Cit' a =etition to Den' D%e Co%rse to or Cancel Certi(icate o( Can!i!ac' an!?or Dis.%ali(ication o( 2alaga on t$e gro%n! t$at t$e latter ,as electe! an! $a! serve! as cit' ma'or (or t$ree ;1< consec%tive terms as (ollo,s: ;1< in t$e election o( Ma' 188/ ,$ere $e serve! t$e (%ll termA ;/< in t$e election o( Ma' 188C ,$ere $e again serve! t$e (%ll termA an! ;1< in t$e recall election o( Ma' 1/ /555 ,$ere $e serve! onl' t$e %ne4&ire! term o( 2agarao a(ter $aving lost to 2agarao in t$e 1888 election. =etitioner conten!e! t$at 2alaga>s can!i!ac' as Ma'or constit%te! a violation o( )ection 8 #rticle J o( t$e 1887 Constit%tion ,$ic$ &rovi!es t$at t$e term o( o((ice o( elective local o((icials e4ce&t baranga' o((icials ,$ic$ s$all be !etermine! b' la, s$all be t$ree 'ears an! no s%c$ o((icial s$all serve (or more t$an t$ree consec%tive terms. Kol%ntar' ren%nciation o( t$e o((ice (or an' lengt$ o( time s$all not be consi!ere! as an interr%&tion in t$e contin%it' o( $is service (or t$e (%ll term (or ,$ic$ $e ,as electe!. 2alaga res&on!e! t$at $e ,as not electe! Cit' Ma'or (or t$ree ;1< consec%tive terms b%t onl' (or t,o ;/< consec%tive terms. He &ointe! to $is !e(eat in t$e 1888 election b' 2agarao. Beca%se o( $is !e(eat t$e consec%tiveness o( $is 'ears as ma'or ,as interr%&te! an! t$%s $is ma'ors$i& ,as not (or t$ree consec%tive terms o( t$ree 'ears eac$. -es&on!ent a!!e! t$at $is service (rom Ma' 1/ /551 %ntil 7%ne 15 /551 (or 11 mont$s an! eig$teen ;18< !a's ,as not a (%ll term in t$e contem&lation o( t$e la, an! t$e Constit%tion. 2$e COM3L3C (o%n! 2alaga !is.%ali(ie! (or t$e &osition o( cit' ma'or on t$e gro%n! t$at $e $a! alrea!' serve! t$ree ;1< consec%tive terms an! $is Certi(icate o( Can!i!ac' ,as or!ere! ,it$!ra,n an!?or cancelle!. M- reverse! COM3L3C r%ling an! $el! t$at 1< res&on!ent ,as not electe! (or t$ree ;1< consec%tive terms beca%se $e !i! not ,in in t$e Ma' 11 1888 electionsA /< t$at $e ,as installe! onl' as ma'or b' reason o( $is victor' in t$e recall electionsA 1< t$at $is victor' in t$e recall elections ,as not consi!ere! a term o( o((ice an! is not incl%!e! in t$e 1Dterm !is.%ali(ication r%le an! 0< t$at $e !i! not (%ll' serve t$e t$ree ;1< consec%tive terms an! $is loss in t$e Ma' 11 1888 elections is consi!ere! an interr%&tion in t$e contin%it' o( $is service as Ma'or o( L%cena Cit'. On Ma' 18 /551 a(ter canvassing &rivate res&on!ent ,as &roclaime! as t$e !%l' electe! Ma'or o( L%cena Cit'. *ss%e: 6ON COM3L3C 2alaga is .%ali(ie! to r%n (orMa'or in L%cena Cit' (or t$e /551 elections. =etitioner conten!s t$at &rivate res&on!ent ,as !is.%ali(ie! to r%n (or cit' ma'or b' reason o( t$e t$reeDterm r%le beca%se t$e %ne4&ire! &ortion o( t$e term o( o((ice $e serve! a(ter ,inning a recall election covering t$e &erio! Ma' 1/ /555 to 7%ne 15 /551 is consi!ere! a (%ll term. He &osits t$at to inter&ret ot$er,ise &rivate res&on!ent ,o%l! be serving (o%r ;0< consec%tive terms o( 15 'ears in violation o( )ection 8 #rticle J o( 1887 Constit%tionU0V an! )ection 01 ;b< o( -.#. 71G5 +no,n as t$e LGC. =rivate res&on!ent in t%rn maintains t$at $is service as cit' ma'or o( L%cena is not consec%tive. He lost $is bi! (or a secon! reDelection in 1888 an! bet,een 7%ne 15 1888 to Ma' 1/ /555 !%ring 2agarao>s inc%mbenc' $e ,as a &rivate citiBen t$%s $e $a! not been ma'or (or 1 consec%tive terms. *n its comment t$e COM3L3C restate! its &osition t$at &rivate res&on!ent ,as not electe! (or t$ree ;1< consec%tive terms $aving lost $is t$ir! bi! in t$e Ma' 11 1888 elections sai! !e(eat is an interr%&tion in t$e contin%it' o( service as cit' ma'or o( L%cena. Bor9a Case: Case No. /. )%&&ose B is electe! ma'or an! !%ring $is (irst term $e is t,ice s%s&en!e! (or miscon!%ct (or a total o( 1 'ear. *( $e is t,ice reelecte! a(ter t$at can $e r%n (or one more term in t$e ne4t electionT :es beca%se $e $as serve! onl' t,o (%ll terms s%ccessivel'. 2o consi!er C as eligible (or reelection ,o%l! be in accor! ,it$ t$e %n!erstan!ing o( t$e Constit%tional Commission t$at ,$ile t$e &eo&le s$o%l! be &rotecte! (rom t$e evils t$at a mono&ol' o( &olitical &o,er ma' bring abo%t care s$o%l! be ta+en t$at t$eir (ree!om o( c$oice is not %n!%l' c%rtaile!. LonBani!a Case: 2,o con!itions (or t$e a&&lication o( t$e !is.%ali(ication m%st conc%r: a< t$at t$e o((icial concerne! $as been electe! (or t$ree consec%tive terms in t$e same local government &ost an! /< t$at $e $as (%ll' serve! t$ree consec%tive terms. COM3L3C>s r%ling t$at &rivate res&on!ent ,as not electe! (or t$ree ;1< consec%tive terms s$o%l! be %&$el!. For nearl'
/51

t,o 'ears $e ,as a &rivate citiBen. 2$e contin%it' o( $is ma'ors$i& ,as !isr%&te! b' $is !e(eat in t$e 1888 elections. =atentl' %ntenable is &etitioner>s contention t$at COM3L3C in allo,ing res&on!ent 2alaga 7r. to r%n in t$e Ma' 1888 election violates #rticle J )ection 8 o( 1887 Constit%tion. 2o bolster $is case res&on!ent a!verts to t$e comment o( Fr. 7oa.%in Bernas a Constit%tional Commission member stating t$at in inter&reting sai! &rovision t$at Ei( one is electe! re&resentative to serve t$e %ne4&ire! term o( anot$er t$at %ne4&ire! no matter $o, s$ort ,ill be consi!ere! one term (or t$e &%r&ose o( com&%ting t$e n%mber o( s%ccessive terms allo,e!.F #s &ointe! o%t b' t$e COM3L3C en banc Fr. Bernas> comment is &ertinent onl' to members o( t$e Ho%se o( -e&resentatives. @nli+e local government o((icials t$ere is no recall election &rovi!e! (or members o( Congress. Neit$er can res&on!ent>s victor' in t$e recall election be !eeme! a violation o( )ection 8 #rticle J o( t$e Constit%tion as Evol%ntar' ren%nciationF (or clearl' it is not. *n LonBani!a vs. COM3L3C ,e sai!: 2$e secon! sentence o( t$e constit%tional &rovision %n!er scr%tin' states EKol%ntar' ren%nciation o( o((ice (or an' lengt$ o( time s$all not be consi!ere! as an interr%&tion in t$e contin%it' o( service (or t$e (%ll term (or ,$ic$ $e ,as electe!.F 2$e clear intent o( t$e (ramers o( t$e constit%tion to bar an' attem&t to circ%mvent t$e t$reeDterm limit b' a vol%ntar' ren%nciation o( o((ice an! at t$e same time res&ect t$e &eo&le>s c$oice an! grant t$eir electe! o((icial (%ll service o( a term is evi!ent in t$is &rovision. Kol%ntar' ren%nciation o( a term !oes not cancel t$e reno%nce! term in t$e com&%tation o( t$e t$ree term limitA conversel' invol%ntar' severance (rom o((ice (or an' lengt$ o( time s$ort o( t$e (%ll term &rovi!e! b' la, amo%nts to an interr%&tion o( contin%it' o( service. 2$e &etitioner vacate! $is &ost a (e, mont$s be(ore t$e ne4t ma'oral elections not b' vol%ntar' ren%nciation b%t in com&liance ,it$ t$e legal &rocess o( ,rit o( e4ec%tion iss%e! b' t$e COM3L3C to t$at e((ect. )%c$ invol%ntar' severance (rom o((ice is an interr%&tion o( contin%it' o( service an! t$%s t$e &etitioner !i! not (%ll' serve t$e 188CD1888 ma'oral term. (ocrates v. COM%L%C Facts: On 7%l' / /55/ 11/ o%t o( C/8 members o( t$e t$en inc%mbent baranga' o((icials o( t$e =%erto =rincesa convene! t$emselves into a =re&arator' -ecall #ssembl' to initiate t$e recall o( Kictorino Dennis M. )ocrates ,$o ass%me! o((ice as =%erto =rincesa>s ma'or on 7%ne 15 /551. 2$e members o( t$e =-# !esignate! Mar+ Davi! M. Hage!orn &resi!ent o( t$e #ssociation o( Baranga' Ca&tains as interim c$air o( t$e =-#. =-# &asse! a resol%tion ,$ic$ !eclare! its loss o( con(i!ence in )ocrates an! calle! (or $is recall. 2$e =-# re.%este! t$e COM3L3C to sc$e!%le t$e recall election (or ma'or ,it$in 15 !a's (rom recei&t o( t$e -ecall -esol%tion. On 7%l' 1G /55/ )ocrates (ile! ,it$ t$e COM3L3C a &etition to n%lli(' an! !en' !%e co%rse to t$e -ecall -esol%tion. On #%g%st 10 /55/ t$e COM3L3C !ismisse! )ocrates> &etition an! gave !%e co%rse to t$e -ecall -esol%tion an! sc$e!%le! t$e recall election on )e&tember 7 /55/. On #%g%st /1 /55/ t$e COM3L3C en banc &rom%lgate! a resol%tion &rescribing t$e calen!ar o( activities an! &erio!s o( certain &ro$ibite! acts in connection ,it$ t$e recall election. 2$e COM3L3C (i4e! t$e cam&aign &erio! (rom #%g%st /7 /55/ to )e&tember C /55/ or a &erio! o( 15 !a's. On #%g%st /1 /55/ . Hage!orn (ile! $is certi(icate o( can!i!ac' (or ma'or in t$e recall election. #!ovo an! Gilo (ile! a &etition to !is.%ali(' Hage!orn (rom r%nning in t$e recall election an! to cancel $is certi(icate o( can!i!ac'. Ollave an! Manaa' also. 2$e &etitions ,ere all anc$ore! on t$e gro%n! t$at EHage!orn is !is.%ali(ie! (rom r%nning (or a (o%rt$ consec%tive term $aving been electe! an! $aving serve! as ma'or o( t$e cit' (or t$ree ;1< consec%tive (%ll terms imme!iatel' &rior to t$e instant recall election (or t$e same &ost.F *n a resol%tion &rom%lgate! on )e&tember /5 /55/ t$e COM3L3C !ismisse! (or lac+ o( merit an! !eclare! Hage!orn .%ali(ie! to r%n in t$e recall election. 2$e COM3L3C also reset t$e recall election (rom )e&tember 7 /55/ to )e&tember /0 /55/. M- !enie!. Hage!orn ,on an! (ile! motions to li(t t$e or!er restraining t$e COM3L3C (rom &roclaiming t$e ,inning can!i!ate an! to allo, $im to ass%me o((ice to give e((ect to t$e ,ill o( t$e electorate. *ss%es: 1. 6ON t$e COM3L3C committe! grave ab%se o( !iscretion in giving !%e co%rse to t$e -ecall -esol%tion an! sc$e!%ling t$e recall election (or ma'or o( =%erto =rincesa.
/50

)ocrates arg%es t$at t$e COM3L3C committe! grave ab%se o( !iscretion in %&$ol!ing t$e -ecall -esol%tion !es&ite t$e absence o( notice to 115 =-# members an! t$e !e(ective service o( notice to ot$er =-# members. 2$e COM3L3C $o,ever (o%n! t$at on vario%s !ates in t$e mont$ o( 7%ne /55/ t$e &ro&onents (or t$e -ecall o( inc%mbent Cit' Ma'or Kictorino Dennis M. )ocrates sent notices o( t$e convening o( t$e =-# to t$e members t$ereo( &%rs%ant to )ection 75 o( t$e LGC. Notices ,ere li+e,ise &oste! in cons&ic%o%s &laces &artic%larl' at t$e Baranga' Hall. 2$e &ro&onents li+e,ise %tiliBe! t$e broa!cast mass me!ia in t$e !issemination o( t$e convening o( t$e =-#. 2$e Cit' 3lection O((icer o( =%erto =rincesa Cit' in $er Certi(ication !ate! 15 7%l' /55/ certi(ie! t$at %&on a ]t$oro%g$ an! care(%l veri(ication o( t$e signat%res ma9orit' o( all members o( t$e =-# concerne! a&&rove! sai! resol%tion.> )$e li+e,ise certi(ie! ]t$at not a single member?signator' o( t$e =-# com&laine! or ob9ecte! as to t$e veracit' an! a%t$enticit' o( t$eir signat%res.> 2$e =rovincial 3lection )%&ervisor o( =ala,an #tt'. @rbano #rlan!o in $is *n!orsement !ate! 15 7%l' /55/ state! ]%&on &ro&er revie, all !oc%ments s%bmitte! are (o%n! in or!er.> 2$e #cting Director *K -egion *K (o%n! t$at t$e =-# ,as vali!l' constit%te! an! t$at t$e ma9orit' o( all members t$ereo( a&&rove! -esol%tion No. 51D5/ calling (or t$e recall o( Ma'or Kictorino Dennis M. )ocrates.> /. 6ON Hage!orn is .%ali(ie! to r%n (or ma'or in t$e recall election o( =%erto =rincesa on )e&tember /0 /55/. 2$e t$reeDterm limit r%le (or elective local o((icials is (o%n! in )ection 8 #rticle J o( t$e Constit%tion ,$ic$ states: 2$e term o( o((ice o( elective local o((icials e4ce&t baranga' o((icials ,$ic$ s$all be !etermine! b' la, s$all be t$ree 'ears an! no s%c$ o((icial s$all serve (or more t$an t$ree consec%tive terms. Kol%ntar' ren%nciation o( t$e o((ice (or an' lengt$ o( time s$all not be consi!ere! as an interr%&tion in t$e contin%it' o( $is service (or t$e (%ll term (or ,$ic$ $e ,as electe!.F 2$is t$reeDterm limit r%le is reiterate! in )ection 01 ;b< o( -# No. 71G5 ot$er,ise +no,n as t$e LGC ,$ic$ &rovi!es: No local elective o((icial s$all serve (or more t$an t$ree ;1< consec%tive terms in t$e same &osition. Kol%ntar' ren%nciation o( t$e o((ice (or an' lengt$ o( time s$all not be consi!ere! as an interr%&tion in t$e contin%it' o( service (or t$e (%ll term (or ,$ic$ t$e elective o((icial ,as electe!.F 2$ese constit%tional an! stat%tor' &rovisions $ave t,o &arts. 2$e (irst &art &rovi!es t$at an elective local o((icial cannot serve (or more t$an t$ree consec%tive terms. 2$e clear intent is t$at onl' consec%tive terms co%nt in !etermining t$e t$reeDterm limit r%le. 2$e secon! &art states t$at vol%ntar' ren%nciation o( o((ice (or an' lengt$ o( time !oes not interr%&t t$e contin%it' o( service. 2$e clear intent is t$at invol%ntar' severance (rom o((ice (or an' lengt$ o( time interr%&ts contin%it' o( service an! &revents t$e service be(ore an! a(ter t$e interr%&tion (rom being 9oine! toget$er to (orm a contin%o%s service or consec%tive terms. #(ter t$ree consec%tive terms an elective local o((icial cannot see+ imme!iate reelection (or a (o%rt$ term. 2$e &ro$ibite! election re(ers to t$e ne4t reg%lar election (or t$e same o((ice (ollo,ing t$e en! o( t$e t$ir! consec%tive term. #n' s%bse.%ent election li+e a recall election is no longer covere! b' t$e &ro$ibition (or t,o reasons. First a s%bse.%ent election li+e a recall election is no longer an imme!iate reelection a(ter t$ree consec%tive terms. )econ! t$e intervening &erio! constit%tes an invol%ntar' interr%&tion in t$e contin%it' o( service. 2$e (ramers o( t$e Constit%tion t$%s clari(ie! t$at a )enator can r%n a(ter onl' t$ree 'ears (ollo,ing $is com&letion o( t,o terms. 2$e (ramers e4&ressl' ac+no,le!ge! t$at t$e &ro$ibite! election re(ers onl' to t$e imme!iate reelection an! not to an' s%bse.%ent election !%ring t$e si4D'ear &erio! (ollo,ing t$e t,o term limit. 2$e (ramers o( t$e Constit%tion !i! not inten! Et$e &erio! o( restF o( an elective o((icial ,$o $as reac$e! $is term limit to be t$e (%ll e4tent o( t$e s%ccee!ing term. *n t$e case o( Hage!orn $is can!i!ac' in t$e recall election on )e&tember /0 /55/ is not an imme!iate reelection a(ter $is t$ir! consec%tive term ,$ic$ en!e! on 7%ne 15 /551. 2$e imme!iate reelection t$at t$e Constit%tion barre! Hage!orn (rom see+ing re(erre! to t$e reg%lar elections in /551. Hage!orn !i! not see+ reelection in t$e /551 elections.
/5C
Mabelle O. Nebres | Local Governments Case Digests Hage!orn ,as electe! (or t$ree consec%tive terms in t$e
188/ 188C an! 1888 elections an! serve! in (%ll $is t$ree consec%tive terms as ma'or o( =%erto =rincesa. @n!er t$e Constit%tion an! t$e LGC Hage!orn co%l! no longer r%n (or ma'or in t$e /551 elections. 2$e Constit%tion an! t$e LGC !is.%ali(ie! Hage!orn ,$o $a! reac$e! t$e ma4im%m t$reeDterm limit (rom r%nning (or a (o%rt$ consec%tive term as ma'or. 2$%s Hage!orn !i! not r%n (or ma'or in t$e /551 elections. )ocrates ran an! ,on as ma'or o( =%erto =rincesa in t$e /551 elections. #(ter Hage!orn cease! to be ma'or on 7%ne 15 /551 $e became a &rivate citiBen %ntil t$e recall election o( )e&tember /0 /55/ ,$en $e ,on b' 1 518 votes over $is closest o&&onent )ocrates. From 7%ne 15 /551 %ntil t$e recall election on )e&tember /0 /55/ t$e ma'or o( =%erto =rincesa ,as )ocrates. D%ring t$e same &erio! Hage!orn ,as sim&l' a &rivate citiBen. 2$is &erio! is clearl' an interr%&tion in t$e contin%it' o( Hage!orn>s service as ma'or not beca%se o( $is vol%ntar' ren%nciation b%t beca%se o( a legal &ro$ibition. Hage!orn>s t$ree consec%tive terms en!e! on 7%ne 15 /551. Hage!orn>s ne, recall term (rom )e&tember /0 /55/ to 7%ne 15 /550 is not a seamless contin%ation o( $is &revio%s t$ree consec%tive terms as ma'or. One cannot stitc$ toget$er Hage!orn>s &revio%s t$reeDterms ,it$ $is ne, recall term to ma+e t$e recall term a (o%rt$ consec%tive term beca%se (act%all' it is not. #n invol%ntar' interr%&tion occ%rre! (rom 7%ne 15 /551 to )e&tember /0 /55/ ,$ic$ bro+e t$e contin%it' or consec%tive c$aracter o( Hage!orn>s service as ma'or. LonBani!a Case: Kol%ntar' ren%nciation o( o((ice (or an' lengt$ o( time s$all not be consi!ere! as an interr%&tion in t$e contin%it' o( service (or t$e (%ll term (or ,$ic$ $e ,as electe!.F 2$e clear intent o( t$e (ramers o( t$e constit%tion to bar an' attem&t to circ%mvent t$e t$reeDterm limit b' a vol%ntar' ren%nciation o( o((ice an! at t$e same time res&ect t$e &eo&le>s c$oice an! grant t$eir electe! o((icial (%ll service o( a term is evi!ent in t$is &rovision. Kol%ntar' ren%nciation o( a term !oes not cancel t$e reno%nce! term in t$e com&%tation o( t$e t$reeDterm limitA conversel' invol%ntar' severance (rom o((ice (or an' lengt$ o( time s$ort o( t$e (%ll term &rovi!e! b' la, amo%nts to an interr%&tion o( contin%it' o( service. *n Hage!orn>s case t$e nearl' 1CDmont$ &erio! $e ,as o%t o( o((ice alt$o%g$ s$ort o( a (%ll term o( t$ree 'ears constit%te! an interr%&tion in t$e contin%it' o( $is service as ma'or. 2$e Constit%tion !oes not re.%ire t$e interr%&tion or $iat%s to be a (%ll term o( t$ree 'ears. 2$e clear intent is t$at interr%&tion E(or an' lengt$ o( time F as long as t$e ca%se is invol%ntar' is s%((icient to brea+ an elective local o((icial>s contin%it' o( service. #!ormeo Case: an interr%&tion consisting o( a &ortion o( a term o( o((ice brea+s t$e contin%it' o( service o( an elective local o((icial. 2$e iss%e in #!ormeo ,as ,$et$er 2alaga>s recall term ,as a contin%ation o( $is &revio%s t,o terms so t$at $e ,as !eeme! to $ave alrea!' serve! t$ree consec%tive terms as ma'or. 2$e Co%rt r%le! t$at 2alaga ,as .%ali(ie! to r%n in t$e /551 elections stating t$at t$e &erio! (rom 7%ne 15 1888 to Ma' 1/ /555 ,$en 2alaga ,as o%t o( o((ice interr%&te! t$e contin%it' o( $is service as ma'or. 2alaga>s recall term as ma'or ,as not consec%tive to $is &revio%s t,o terms beca%se o( t$is interr%&tion t$ere $aving been a brea+ o( almost t,o 'ears !%ring ,$ic$ time 2agarao ,as t$e ma'or. *n t$e instant case ,e li+e,ise $ol! t$at t$e nearl' 1C mont$s Hage!orn ,as o%t o( o((ice interr%&te! $is contin%it' o( service an! &revents $is recall term (rom being stitc$e! toget$er as a seamless contin%ation o( $is &revio%s t$ree consec%tive terms. 2$e onl' !i((erence bet,een #!ormeo an! t$e instant case is t$e time o( t$e interr%&tion. *n #!ormeo t$e interr%&tion occ%rre! a(ter t$e (irst t,o consec%tive terms. *n t$e instant case t$e interr%&tion $a&&ene! a(ter t$e (irst t$ree consec%tive terms. *n bot$ cases t$e res&on!ents ,ere see+ing election (or a (o%rt$ term. 2$e &erio! o( time &rior to t$e recall term ,$en anot$er elective o((icial $ol!s o((ice constit%tes an interr%&tion in contin%it' o( service. Clearl' #!ormeo establis$e! t$e r%le t$at t$e ,inner in t$e recall election cannot be c$arge! or cre!ite! ,it$ t$e (%ll term o( t$ree 'ears (or &%r&oses o( co%nting t$e consec%tiveness o( an elective o((icial>s terms in o((ice. Hage!orn>s recall term !oes not retroact to incl%!e t$e ten%re in o((ice o( )ocrates. Hage!orn can onl' be !is.%ali(ie! to r%n in t$e )e&tember /0 /55/ recall election i( t$e recall term is ma!e to retroact to 7%ne 15 /551 (or
/5G

onl' t$en can t$e recall term constit%te a (o%rt$ consec%tive term. B%t to consi!er Hage!orn>s recall term as a (%ll term o( t$ree 'ears retroacting to 7%ne 15 /551 !es&ite t$e (act t$at $e ,on $is recall term onl' last )e&tember /0 /55/ is to ignore realit'. 2$is Co%rt cannot !eclare as consec%tive or s%ccessive terms o( o((ice ,$ic$ $istoricall' an! (act%all' are not. 2o ma+e Hage!orn>s recall term retroact to 7%ne 15 /551 creates a legal (iction t$at %n!%l' c%rtails t$e (ree!om o( t$e &eo&le to c$oose t$eir lea!ers t$ro%g$ &o&%lar elections. 2$e conce&t o( term limits is in !erogation o( t$e sovereign ,ill o( t$e &eo&le to elect t$e lea!ers o( t$eir o,n c$oosing. 2erm limits m%st be constr%e! strictl' to give t$e (%llest &ossible e((ect to t$e sovereign ,ill o( t$e &eo&le. # necessar' conse.%ence o( t$e interr%&tion o( contin%it' o( service is t$e start o( a ne, term (ollo,ing t$e interr%&tion. #n o((icial electe! in recall election serves t$e %ne4&ire! term o( t$e recalle! o((icial. 2$is %ne4&ire! term is in itsel( one term (or &%r&oses o( co%nting t$e t$reeDterm limit. #n elective local o((icial ,$o serves a recall term can serve (or more t$an nine consec%tive 'ears com&rising o( t$e recall term &l%s t$e reg%lar t$ree (%ll terms. # local o((icial ,$o serves a recall term s$o%l! +no, t$at t$e recall term is in itsel( one term alt$o%g$ less t$an t$ree 'ears. 2$is is t$e in$erent limitation $e ta+es b' r%nning an! ,inning in t$e recall election. QQHage!orn is .%ali(ie! to r%n in t$e )e&tember /0 /55/ recall election (or ma'or o( =%erto =rincesa beca%se: 1. Hage!orn is not r%nning (or imme!iate reelection (ollo,ing $is t$ree consec%tive terms as ma'or ,$ic$ en!e! on 7%ne 15 /551A /. Hage!orn>s contin%it' o( service as ma'or ,as invol%ntaril' interr%&te! (rom 7%ne 15 /551 to )e&tember /0 /55/ !%ring ,$ic$ time $e ,as a &rivate citiBenA 1. Hage!orn>s recall term (rom )e&tember /0 /55/ to 7%ne 15 /550 cannot be ma!e to retroact to 7%ne 15 /551 to ma+e a (o%rt$ consec%tive term beca%se (act%all' t$e recall term is not a (o%rt$ consec%tive termA an! 0. 2erm limits s$o%l! be constr%e! strictl' to give t$e (%llest &ossible e((ect to t$e rig$t o( t$e electorate to c$oose t$eir lea!ers. Men oza v. COM%L%C Osme@a v. COM%L%C Facts: -# 75CG ;#n #ct =rovi!ing (or t$e National an! Local 3lections in 188/ =ave t$e 6a' (or )'nc$roniBe! an! )im%ltaneo%s 3lections Beginning 188C an! #%t$oriBing #&&ro&riations 2$ere(or< ,as enacte!. )%it ,as instit%te! b' Governor OsmeRa Governor =ag!anganan on be$al( o( t$e Leag%e o( Governors o( t$e =$ili&&ines -e&resentatives Garcia !el Mar Bacaltos Cainglet an! G%anBon b' ,a' o( a &etition (or =ro$ibition man!am%s an! *n9%nction ,it$ tem&orar' restraining or!er an!?or &reliminar' in9%nction to &revent t$e im&lementation o( sai! -# an! t$e conse.%ent e4&en!it%re o( &%blic (%n!s an! to com&el t$e Comelec to imme!iatel' an! ,it$ all !eliberate s&ee! set %& t$e mac$iner' an! ma+e t$e necessar' &re&aration (or t$e $ol!ing o( s'nc$roniBe! national an! local elections on t$e secon! Mon!a' o( Ma' 188/. 2$e' &ra' (or t$is Co%rt to !eclare -e&%blic #ct No. 75CG as %nconstit%tional an! t$ere(ore invali! an! ino&erative beca%se: 1. -e&%blic #ct 75CG violates t$e man!ate o( t$e Constit%tion (or t$e $ol!ing o( s'nc$roniBe! national an! local elections on t$e secon! Mon!a' o( Ma' 188/. /. -e&%blic #ct 75CG &artic%larl' t$e /n! &aragra&$ o( )ection 1 t$ereo( &rovi!ing t$at all inc%mbent &rovincial cit' an! m%nici&al o((icials s$all $ol! over be'on! 7%ne 15 188/ an! s$all serve %ntil t$eir s%ccessors s$all $ave been !%l' electe! an! .%ali(ie! violates )ection / #rticle JK*** ;2ransitor' =rovision< o( t$e Constit%tion. 1. 2$e same &aragra&$ o( )ection 1 o( -e&%blic #ct 75CG ,$ic$ in e((ect s$ortens t$e term or ten%re o( o((ice o( local o((icials to be electe! on t$e /n! Mon!a' o( November 188/ violates )ection 8 #rticle J o( t$e Constit%tion. 0. )ection 8 o( -e&%blic #ct 75CG &rovi!ing (or t$e cam&aign &erio!s (or =resi!ential KiceD=resi!ential an! )enatorial elections violates t$e &rovision o( )ection 8 #rticle *J %n!er t$e title "Commission on 3lections" o( t$e Constit%tion. C. 2$e soDcalle! man' !i((ic%lt i( not ins%rmo%ntable &roblems mentione! in -e&%blic #ct 75CG to s'nc$roniBe! national an! local elections set b' t$e Constit%tion on t$e secon! Mon!a' o( Ma' 188/ are not s%((icient m%c$ less vali! 9%sti(ication (or &ost&oning t$e local elections to t$e secon! Mon!a' o( November 188/ an! in t$e &rocess violating t$e Constit%tion itsel(. *( at all Congress can !evise ,a's an! means ,it$in t$e &arameters o( t$e Constit%tion
/57

to eliminate or at least minimiBe t$ese &roblems an! i( t$is still is not (easible resort can be ma!e to t$e sel(Dcorrecting mec$anism b%ilt in t$e Constit%tion (or its amen!ment or revision. ;&&. 0DC =etition< )imilar claims $ave been ma!e in t$e ot$er cases mentione! in t$e ca&tion. 2$e Co%rt in its -esol%tion !ate! 7%ne /7 1881 iss%e! a restraining or!er "or!ering t$e res&on!ents an!?or an'one acting in t$eir &lace or stea! or b' t$eir a%t$orit' to cease an! !esist (rom im&lementing -e&%blic #ct 75CG ,$ic$ &rovi!es among ot$ers (or t$e $ol!ing o( !es'nc$roniBe! national an! local elections in 188/." ;&. /8 -ollo< 2$e Co%rt also re.%ire! res&on!ents to comment on t$e &etition ,it$in a nonDe4ten!ible &erio! o( ten ;15< !a's (rom notice. Commenting on t$e &etition as re.%ire! t$e )olicitor General &ra's (or t$e !enial o( t$e &etition arg%ing t$at t$e .%estion raise! b' &etitioners is &olitical in nat%re an! t$ere(ore be'on! t$e 9%ris!iction o( t$is Co%rt. He stresses citing National 3conomic =rotective #ssociation v. Ong&in 171 )C-# GC7 t$at &etitioners (aile! to s$o, 9%sti(ication (or t$e e4ercise o( its 9%!icial &o,er viB ;1< t$e e4istence o( an a&&ro&riate caseA ;/< an interest &ersonal an! s%bstantial b' t$e &art' raising t$e constit%tional .%estionA ;1< t$e &lea t$at t$e (%nction be e4ercise! at t$e earliest o&&ort%nit'A an! ;0< t$e necessit' t$at t$e constit%tional .%estion be &asse! %&on in or!er to !eci!e t$e case. He also .%estions t$e legal stan!ing o( t$e &etitioners ,$o $e conten!s are merel' as+ing (or an a!visor' o&inion (rom t$e Co%rt t$ere being no 9%sticiable controvers' (or resol%tion. On t$e merits o( t$e case t$e )olicitor General conten!s t$at -e&%blic #ct 75CG is a vali! e4ercise o( legislative &o,er b' Congress an! t$at t$e reg%lar amen!ing &rocess &rescribe! b' t$e Constit%tion !oes not a&&l' to its transitor' &rovisions. *ss%es: 1. 6ON t$e co%rt ma' act on t$e matter at bar. 6$at is be(ore %s is not a !iscretionar' act o( Congress or t$e 34ec%tive t$at ma' not be revie,e! b' %s beca%se it is &olitical in nat%re. 6$at is involve! $ere is t$e legalit' not t$e ,is!om o( -# 75CG. #n! even i( ,e ,ere to ass%me t$at t$e iss%e &resente! be(ore %s is &olitical in nat%re 6e ,o%l! still not be &recl%!e! (rom resolving it %n!er t$e e4&an!e! 9%ris!iction con(erre! %&on %s t$at no, covers in &ro&er cases even &olitical .%estions &rovi!e! nat%rall' t$at t$e .%estion is not solel' an! e4cl%sivel' &olitical ;as ,$en t$e 34ec%tive e4ten!s recognition to a (oreign government< b%t one ,$ic$ reall' necessitates a (ort$rig$t !etermination o( constit%tionalit' involving as it !oes a .%estion o( national im&ortance. #rticle K*** )ec. 1 o( t$e 1887 Constit%tion clearl' &rovi!es: 2$e 9%!icial &o,er s$all be veste! in one )%&reme Co%rt an! in s%c$ lo,er co%rts as ma' be establis$e! b' la,. 7%!icial &o,er incl%!es t$e !%t' o( t$e co%rts o( 9%stice to settle act%al controversies involving rig$ts ,$ic$ are legall' !eman!able an! en(orceable an! to !etermine ,$et$er or not t$ere $as been a grave ab%se o( !iscretion amo%nting to lac+ or e4cess o( 9%ris!iction on t$e &art o( an' branc$ or instr%mentalit' o( t$e Government. 2$e iss%e &resente! to %s in t$e case at bar is 9%sticiable rat$er t$an &olitical. 3ven i( t$e .%estion ,ere &olitical in nat%re it ,o%l! still come ,it$in o%r &o,ers o( revie, %n!er t$e e4&an!e! 9%ris!iction con(erre! %&on %s b' #rticle K*** )ection 1 o( t$e 1887 Constit%tion ,$ic$ incl%!es t$e a%t$orit' to !etermine ,$et$er grave ab%se o( !iscretion amo%nting to e4cess or lac+ o( 9%ris!iction $as been committe! b' an' branc$ or instr%mentalit' o( t$e government. #s (or t$e ot$er allege! &roce!%ral (la,s S lac+ o( co%rt stan!ing etc. ass%ming t$e e4istence o( s%c$ (la,s t$e same ma' be br%s$e! asi!e con(ormabl' ,it$ e4isting !octrine so t$at t$e im&ortant constit%tional iss%e raise! ma' be a!!resse!. 6ON -# 75CG is constit%tional. #rticle JK*** )ec /o( t$e 1887 Constit%tion: 2$e )enators Members o( t$e Ho%se o( -e&resentatives an! t$e local o((icials (irst electe! %n!er t$is Constit%tion s$all serve %ntil noon o( 7%ne 15 188/. O( t$e )enators electe! in t$e election in 188/ t$e (irst t,elve obtaining t$e $ig$est n%mber o( votes s$all serve (or si4 'ear an! t$e remaining t,elve (or t$ree 'ears. )ec. C. 2$e si4D'ear term o( t$e inc%mbent =resi!ent an! Kice =resi!ent electe! in t$e Febr%ar' 7 188G election is (or &%r&oses o( s'nc$roniBation o( elections $ereb'
/.
/58

e4ten!e! to noon o( 7%ne 15 188/. 2$e (irst reg%lar elections (or =resi!ent an! KiceD=resi!ent %n!er t$is Constit%tion s$all be $el! on t$e secon! Mon!a' o( Ma' 188/. 2erms o( o((ice o( )enators Members o( t$e Ho%se o( -e&resentatives t$e local o((icials t$e =resi!ent an! t$e KiceD=resi!ent $ave been s'nc$roniBe! to en! on t$e same $o%r !ate an! 'ear S noon o( 7%ne 15 188/. 2erm o( s'nc$roniBation is %se! s'non'mo%sl' as t$e &$rase $ol!ing sim%ltaneo%sl' since t$is is t$e &recise intent in terminating t$eir O((ice 2en%re on t$e same !a' or occasion. 2$is common termination !ate ,ill s'nc$roniBe (%t%re elections to once ever' t$ree 'ears. 2$e Constit%tion $as man!ate! a s'nc$roniBe! national an! local election &rior to 7%ne 15 188/ or more s&eci(icall' as &rovi!e! (or in #rticle JK*** )ec. CDon t$e secon! Mon!a' o( Ma' 188/. 2$e term o( o((ice o( elective local o((icials e4ce&t baranga' o((icials is (i4e! b' t$e Constit%tion at t$ree 'ears ;)ec. 8 #rt. J<. 2$e inc%mbent local o((icials ,ere electe! in 7an%ar' 1888. 2$ere(ore t$eir term ,o%l! $ave e4&ire! on Febr%ar' / 1881. B%t t$eir term ,as a!9%ste! to e4&ire at noon o( 7%ne 15 188/. 2$e reason (or t$e sai! a!9%stment as ,ell as t$ose o( t$e )enators members o( t$e Ho%se o( -e&resentatives =resi!ent an! KiceD=resi!ent is t$e same S to s'nc$roniBe t$e national an! local elections. @&on t$e ot$er $an! an! contrar' to t$e e4&ress man!ate o( t$e 1887 Constit%tion -e&%blic #ct 75CG &rovi!es (or t,o ;/< se&arate elections in 188/ as (ollo,s: )ec. /. )tart o( )'nc$roniBation S 2o start t$e &rocess o( s'nc$roniBation o( election in accor!ance ,it$ t$e &olic' $ereinbe(ore !eclare! t$ere s$all be $el!: ;a< #n election (or =resi!ent an! KiceD =resi!ent o( t$e =$ili&&ines t,ent' (o%r ;/0< )enators an! all elective Members o( t$e Ho%se o( -e&resentatives on t$e secon! Mon!a' o( Ma' 188/ an! ;b< #n election o( all &rovincial cit' an! m%nici&al elective o((icials on t$e secon! Mon!a' o( November 188/. 2$e &%r&ose o( -e&%blic #ct 75CG is as state! in )ection 1 t$ereo( %n!er t$e $ea!ing ")tatement o( =olic'" S to start as m%c$ as &racticable t$e s'nc$roniBation o( t$e elections so t$at t$e &rocess can be com&lete! in t$e 188C elections ,it$ t$e res%lt t$at beginning 188C t$ere s$all be onl' one ;1< sim%ltaneo%s reg%lar elections (or national an! local elective o((icials ever' t$ree ;1< 'ears. 6it$ t$e clear man!ate o( t$e 1887 Constit%tion to $ol! s'nc$roniBe! ;sim%ltaneo%s< national an! local elections in t$e secon! Mon!a' o( Ma' 188/ t$e inevitable concl%sion ,o%l! be t$at -e&%blic #ct 75CG is clearl' violative o( t$e Constit%tion beca%se it &rovi!es (or t$e $ol!ing o( a !es'nc$roniBe! election. )tate! !i((erentl' -e&%blic #ct 75CG &artic%larl' )ections 1 an! / t$ereo( contravenes #rticle JK*** )ections / an! C o( t$e 1887 Constit%tion. Ot$er Consti &rovisions violate! b' -# 75CG: )ection / #rticle JK*** o( t$e Constit%tion ,$ic$ &rovi!es t$at t$e local o((icial (irst electe! %n!er t$e Constit%tion s$all serve %ntil noon o( 7%ne 15 188/. B%t %n!er )ec. 1 o( -# 75CG t$ese inc%mbent local o((icials s$all $ol! over be'on! 7%ne 15 188/ an! s$all serve %ntil t$eir s%ccessors s$all $ave been !%l' electe! an! .%ali(ie!. *t $as been $el! t$at *t is not com&etent (or t$e legislat%re to e4ten! t$e term o( o((icers b' &rovi!ing t$at t$e' s$all $ol! over %ntil t$eir s%ccessors are electe! an! .%ali(ie! ,$ere t$e constit%tion $as in e((ect or b' clear im&lication &rescribe! t$e term an! ,$en t$e Constit%tion (i4es t$e !a' on ,$ic$ t$e o((icial term s$all begin t$ere is no legislative a%t$orit' to contin%e t$e o((ice be'on! t$at &erio! even t$o%g$ t$e s%ccessors (ail to .%ali(' ,it$ t$e time. #merican 7%ris&r%!ence: t$e legislat%re cannot b' an act &ost&oning t$e election to (ill an o((ice t$e term o( ,$ic$ is limite! b' t$e Constit%tion e4ten! t$e term o( t$e inc%mbent be'on! t$e &erio! as limite! b' t$e Constit%tion. )ection 8 #rticle J o( t$e Constit%tion ,$ic$ &rovi!es t$at: 2$e term o( o((ice o( elective local o((icials e4ce&t baranga' o((icials ,$ic$ s$all be !etermine! b' la, s$all be t$ree 'ears an! no s%c$ o((icial s$all serve (or more t$an t$ree consec%tive terms. B%t i( t$e local election ,ill be $el! on t$e secon! Mon!a' o( November 188/ %n!er -# 75CG t$ose to be electe! ,ill be serving (or onl' t,o 'ears an! seven mont$s t$at is (rom November 15 188/ to 7%ne 15 188C not t$ree 'ears as &rovi!e! (or b' t$e Constit%tion. )ection 8 #rticle *J o( t$e Constit%tion &rovi!es t$at: @nless ot$er,ise (i4e! b' t$e Commission in s&ecial cases t$e election &erio! s$all commence ninet' !a's be(ore t$e !a' o( election an! s$all en! t$irt' !a's t$erea(ter. @n!er t$is
1.
/.
1.
/58

&rovision t$e (iling o( t$e Certi(icate o( Can!i!ac' an! t$e ens%ing cam&aign &erio! m%st be embrace! or circ%mscribe! ,it$in t$at election &erio! o( ninet' !a's e4ce&t ,$en in s&ecial cases t$e Comelec ;not Congress< alters t$e &erio!. B%t -# 75CG &rovi!es (or a !i((erent cam&aign &erio! as (ollo,s: )ec. 8. ;a< For =resi!ent ari! KiceD=resi!ential elections one $%n!re! t$irt' ;115< !a's be(ore t$e !a' o( election. ;b< For )enatorial elections ninet' ;85< !a's be(ore t$e !a' o( t$e election an! ;c< For t$e election o( Members o( t$e Ho%se o( -e&resentatives an! local elective &rovincial cit' an! m%nici&al o((icials (ort'D(ive ;0C< !a's be(ore t$e !a' o( t$e elections. QQ#ll t$ese S t$e &ost&onement o( t$e $ol!ing o( a s'nc$roniBe! national an! local election (rom 188/ to 188CA t$e $ol!Dover &rovision (or inc%mbent local o((icialsA t$e re!%ction o( t$e term o( o((ice o( local o((icials to be electe! on t$e secon! Mon!a' o( November 188/ an! t$e c$ange in t$e cam&aign &erio!s are violative o( t$e 1887 Constit%tion. QQ2$e contention o( t$e )olicitor General t$at t$e met$o! o( amen!ment or revision &rescribe! b' t$e Constit%tion ;#rticle JK***< !oes not a&&l' to t$e 2ransitor' =rovisions beca%se in t$e nat%re o( t$ings 2ransitor' =rovisions are to be carrie! o%t as soon as &racticable an! Congress can in t$e e4ercise o( its legislative &o,er enact t$e nee!e! legislation in t$is case -# 75CG !eserves no consi!eration at all. 2$e 1887 Constit%tion $as state! in clear an! categorical lang%age t$at "t$e si4D'ear term o( t$e inc%mbent =resi!ent an! KiceD=resi!ent electe! in t$e Febr%ar' 7 188G election is (or &%r&oses o( s'nc$roniBation o( elections $ereb' e4ten!e! to noon o( 7%ne 15 188/ ;#rticle JK*** )ec. C<." #s !isc%sse! earlier t$e elections re(erre! to to be s'nc$roniBe! ,it$ t$e election o( t$e =resi!ent an! KiceD=resi!ent on t$e secon! Mon!a' o( Ma' 188/ is t$e election (or )enators Members o( t$e Ho%se o( -e&resentatives an! local o((icials. QQ)'nc$roniBation S as t$e act or res%lt o( s'nc$roniBingA conc%rrence o( events or motions in res&ect to time. )'nc$roniBe S to $a&&en or ta+e &lace at t$e same timeA to re&resent or arrange event so as to in!icate coinci!ence or coD e4istenceA to ca%se to agree in time.
/15

Facts: On Febr%ar' 1G 1888 b' virt%e o( t$e (act t$at no Governor $a! been &roclaime! in t$e &rovince o( Le'te )ecretar' o( Local Government )antos !esignate! KiceDGovernor =etilla as #cting Governor o( Le'te. On Marc$ /C 1888 MenBon a senior member o( t$e )angg%niang =anlala,igan ,as also !esignate! b' )antos to act as t$e KiceDGovernor (or t$e &rovince o( Le'te. On Ma' /8 1888 =rovincial #!ministrator W%intero in.%ire! (rom t$e @n!ersecretar' o( t$e De&artment o( Local Government -%billar as to t$e legalit' o( t$e a&&ointment o( t$e &etitioner to act as t$e KiceDGovernor o( Le'te. *n $is re&l' letter !ate! 7%ne // 1888 -%billar state! t$at since B.=. 117 $as no &rovision relating to s%ccession in t$e O((ice o( t$e KiceDGovernor in case o( a tem&orar' vacanc' t$e a&&ointment o( MenBon as t$e tem&orar' KiceD Governor is not necessar' since t$e KiceDGovernor ,$o is tem&oraril' &er(orming t$e (%nctions o( t$e Governor co%l! conc%rrentl' ass%me t$e (%nctions o( bot$ o((ices. #s a res%lt o( t$e (oregoing comm%nications bet,een W%intero an! -%billar t$e )angg%niang =anlala,igan in a s&ecial session $el! on 7%l' 7 1888 iss%e! -esol%tion C5C ,$ere it $el! invali! t$e a&&ointment o( t$e &etitioner as acting KiceDGovernor o( Le'te on t$e gro%n! t$at t$ere is no &ermanent vacanc' in sai! o((ice since =etilla ass%me! t$e O((ice o( t$e KiceDGovernor a(ter $e too+ $is oat$ o( o((ice to sai! &osition. MenBon t$ro%g$ t$e acting LD= -egional Co%nsel #tt'. #legre so%g$t clari(ication (rom @n!ersecretar' -%billar regar!ing t$e 7%ne // 1888 o&inion. #ccor!ing to -%billar t$e &ec%liar sit%ation in t$e =rovince o( Le'te ,$ere t$e electoral controvers' in t$e O((ice o( t$e Governor $as not 'et been settle! calls (or t$e !esignation o( t$e )angg%niang Member to act as viceD governor tem&oraril'. *n vie, o( t$e clari(icator' letter o( -%billar t$e -egional Director o( t$e De&artment o( Local Government -egion 8 )alvatierra on 7%l' 17 1888 ,rote a letter a!!resse! to t$e #ctingDGovernor =etilla re.%esting t$e latter t$at -esol%tion No. C5C o( t$e )angg%niang =anlala,igan be mo!i(ie! accor!ingl' as to &revio%s actions ma!e b' $is o((ice an! t$ose o( t$e )angg%niang =anlala,igan ,$ic$ ma' $ave ten!e! to !iscre!it t$e vali!it' o( MenBonHs !esignation as acting viceDgovernor incl%!ing t$e &a'ment o( $is salar' as #cting KiceDGovernor i( $e ,as !e&rive! o( s%c$. On #%g%st 1 1888 t$e -egional Director ,rote anot$er letter to #ctingDGovernor =etilla reiterating $is earlier re.%est. Des&ite t$ese several letters o( re.%est t$e #cting Governor an! t$e )angg%niang =anlala,igan re(%se! to correct -esol%tion C5C an! corres&on!ingl' to &a' t$e &etitioner t$e
Labo- +r. v. COM%L%C /supra- see p.0=C1 Menzon v. Petilla
/11

emol%ments attac$e! to t$e O((ice o( KiceDGovernor. 2$%s on November 1/ 1888 t$e MenBon (ile! be(ore t$is Co%rt a &etition (or certiorari an! man!am%s. 2$e &etition so%g$t t$e n%lli(ication o( -esol%tion No. C5C an! (or t$e &a'ment o( $is salar' (or $is services as t$e acting KiceDGovernor o( Le'te. *n t$e meantime $o,ever t$e iss%e on t$e governors$i& o( Le'te ,as settle! an! #!elina LarraBabal ,as &roclaime! t$e Governor o( t$e &rovince o( Le'te. D%ring t$e &en!enc' o( t$e &etition more &artic%larl' on Ma' 1G 1885 t$e &rovincial treas%rer o( Le'te Florencio L%na allo,e! t$e &a'ment to t$e &etitioner o( $is salar' as acting KiceD Governor o( Le'te in t$e amo%nt o( =17 715.55 (or t$e act%al services ren!ere! b' t$e &etitioner as acting KiceDGovernor. On #%g%st /8 1885 t$is Co%rt !ismisse! t$e &etition (ile! b' #%relio D. MenBon. On )e&tember G 1885 =etilla b' virt%e o( t$e above resol%tion re.%este! Governor LarraBabal to !irect t$e &etitioner to &a' bac+ to t$e &rovince o( Le'te all t$e emol%ments an! com&ensation ,$ic$ $e receive! ,$ile acting as t$e KiceDGovernor o( Le'te. On )e&tember /1 1885 t$e &etitioner (ile! a motion (or reconsi!eration o( o%r resol%tion. 2$e motion &ra'e! t$at t$is Co%rt %&$ol! t$e &etitionerHs rig$t to receive t$e salar' an! emol%ments attac$e! to t$e o((ice o( t$e KiceDGovernor ,$ile $e ,as acting as s%c$. *ss%es: 1.6ON t$ere ,as a vacanc' 2$e la, on =%blic O((icers is clear on t$e matter. 2$ere is no vacanc' ,$enever t$e o((ice is occ%&ie! b' a legall' .%ali(ie! inc%mbent. # sens% contrario t$ere is a vacanc' ,$en t$ere is no &erson la,(%ll' a%t$oriBe! to ass%me an! e4ercise at &resent t$e !%ties o( t$e o((ice. #&&l'ing t$e !e(inition o( vacanc' to t$is case it can be rea!il' seen t$at t$e o((ice o( t$e KiceDGovernor ,as le(t vacant ,$en t$e !%l' electe! KiceDGovernor Leo&ol!o =etilla ,as a&&ointe! #cting Governor. *n t$e e'es o( t$e la, t$e o((ice to ,$ic$ $e ,as electe! ,as le(t barren o( a legall' .%ali(ie! &erson to e4ercise t$e !%ties o( t$e o((ice o( t$e KiceDGovernor. 2$ere is no satis(actor' s$o,ing t$at Leo&ol!o =etilla not,it$stan!ing $is s%ccession to t$e O((ice o( t$e Governor contin%e! to sim%ltaneo%sl' e4ercise t$e !%ties o( t$e KiceDGovernor. 2$e nat%re o( t$e !%ties o( a =rovincial Governor call (or a (%llDtime occ%&ant to !isc$arge t$em. More so ,$en t$e vacanc' is (or an e4ten!e! &erio!. *t ,as =etillaHs a%tomatic ass%m&tion to t$e acting Governors$i& t$at res%lte! in t$e vacanc' in t$e o((ice o( t$e KiceD Governor. 2$e (act t$at t$e )ecretar' o( Local Government ,as &rom&te! to a&&oint t$e &etitioner s$o,s t$e nee! to (ill %& t$e &osition !%ring t$e &erio! it ,as vacant. 2$e De&artment )ecretar' $a! t$e !iscretion to ascertain ,$et$er or not t$e =rovincial Governor s$o%l! !evote all $is time to t$at &artic%lar o((ice. Moreover it is !o%bt(%l i( t$e =rovincial Boar! %nilaterall' acting ma' revo+e an a&&ointment ma!e b' a $ig$er a%t$orit'. 6ON t$e )ecretar' o( Local Government $as t$e a%t$orit' to ma+e tem&orar' a&&ointments. :3). @n!er t$e circ%mstances o( t$is case ;t$ere $a! been no !e 9%re &ermanent Governor (or t$e &rovince o( Le'te (or abo%t t,o 'ears Governor #!elina LarraBabal at t$at time $a! not 'et been &roclaime! !%e to a &en!ing election case< an! consi!ering t$e silence o( t$e LGC t$e Co%rt r%les t$at in or!er to obviate t$e !ilemma res%lting (rom an interregn%m create! b' t$e vacanc' t$e =resi!ent acting t$ro%g$ $er alter ego t$e )ecretar' o( Local Government ma' reme!' t$e sit%ation. MenBon>s tem&orar' a&&ointment vali!. 2$e recor!s s$o, t$at it ,as &rimaril' (or t$is contingenc' t$at @n!ersecretar' -%billar correcte! an! reconsi!ere! $is &revio%s &osition an! ac+no,le!ge! t$e nee! (or an acting KiceDGovernor. *t ma' be note! t$at %n!er Common,ealt$ #ct No. C88 an! t$e -evise! #!ministrative Co!e o( 1887 t$e =resi!ent is em&o,ere! to ma+e tem&orar' a&&ointments in certain &%blic o((ices in case o( an' vacanc' t$at ma' occ%r. #lbeit bot$ la,s !eal onl' ,it$ t$e (illing o( vacancies in a&&ointive &ositions. Ho,ever in t$e absence o( an' contrar' &rovision in t$e LGC an! in t$e best interest o( &%blic service ,e see no cogent reason ,$' t$e &roce!%re t$%s o%tline! b' t$e t,o la,s ma' not be similarl' a&&lie! in t$e &resent case. 2$e res&on!ents conten! t$at t$e &rovincial boar! is t$e correct a&&ointing &o,er. 2$is arg%ment $as no merit. #s bet,een t$e =resi!ent ,$o $as s%&ervision over local governments as &rovi!e! b' la, an! t$e members o( t$e boar! ,$o are 9%nior to t$e viceDgovernor ,e $ave no &roblem r%ling in (avor o( t$e =resi!ent %ntil t$e la, &rovi!es ot$er,ise.
/.
/1/

# vacanc' creates an anomalo%s sit%ation an! (in!s no a&&robation %n!er t$e la, (or it !e&rives t$e constit%ents o( t$eir rig$t o( re&resentation an! governance in t$eir o,n local government. *n a re&%blican (orm o( government t$e ma9orit' r%les t$ro%g$ t$eir c$osen (e, an! i( one o( t$em is inca&acitate! or absent etc. t$e management o( governmental a((airs to t$at e4tent ma' be $am&ere!. Necessaril' t$ere ,ill be a conse.%ent !ela' in t$e !eliver' o( basic services to t$e &eo&le o( Le'te i( t$e Governor or t$e KiceDGovernor is missing. 2$e a&&ointment o( t$e &etitioner moreover is in (%ll accor! ,it$ t$e intent be$in! t$e LGC. 2$ere is no .%estion t$at )ection 08 in connection ,it$ )ection C/ o( t$e LGC s$o,s clearl' t$e intent to &rovi!e (or contin%it' in t$e &er(ormance o( t$e !%ties o( t$e KiceDGovernor. 2$e LGC &rovi!es (or t$e mo!e o( s%ccession in case o( a &ermanent vacanc'. )ection 08: *n case a &ermanent vacanc' arises ,$en a KiceDGovernor ass%mes t$e O((ice o( t$e Governor . . . re(%ses to ass%me o((ice (ails to .%ali(' !ies is remove! (rom o((ice vol%ntar' resigns or is ot$er,ise &ermanentl' inca&acitate! to !isc$arge t$e (%nctions o( $is o((ice t$e sangg%niang &anlala,igan . . . member ,$o obtaine! t$e $ig$est n%mber o( votes in t$e election imme!iatel' &rece!ing . . . s$all ass%me t$e o((ice (or t$e %ne4&ire! term o( t$e KiceDGovernor. . . . B' virt%e o( t$e s%rro%n!ings circ%mstance o( t$is case t$e mo!e o( s%ccession &rovi!e! (or &ermanent vacancies ma' li+e,ise be observe! in case o( a tem&orar' vacanc' in t$e same o((ice. *n t$is case t$ere ,as a nee! to (ill t$e vacanc'. 2$e &etitioner is $imsel( t$e member o( t$e )angg%niang =anlala,igan ,$o obtaine! t$e $ig$est n%mber o( votes. 2$e De&artment )ecretar' acte! correctl' in e4ten!ing t$e tem&orar' a&&ointment. MenBon m%st be &ai! $is salar' attac$e! to $is o((ice b%t onl' t$e remain!er. 3ven granting t$e =resi!ent acting t$ro%g$ t$e )ecretar' o( Local Government &ossesses no &o,er to a&&oint t$e &etitioner at t$e ver' least t$e &etitioner is a !e (acto o((icer entitle! to com&ensation.2$ere is no !en'ing t$at t$e &etitioner ass%me! t$e O((ice o( t$e KiceDGovernor %n!er color o( a +no,n a&&ointment. 2$e res&on!ents t$emselves ac+no,le!ge! t$e vali!it' o( t$e &etitionerHs a&&ointment an! !ealt ,it$ $im as s%c$. *t ,as onl' ,$en t$e controversial -esol%tion No. C5C ,as &asse! b' t$e same &ersons ,$o recogniBe! $im as t$e acting KiceDGovernor t$at t$e vali!it' o( t$e a&&ointment o( t$e &etitioner ,as ma!e an iss%e an! t$e recognition ,it$!ra,n. *ocena v. (angguniang Panlala"igan o! %astern (amar Facts: Ca&ito a member o( t$e )angg%niang =anlala,igan o( 3astern )amar !ie! in o((ice. )ecretar' )antos o( t$e DLG a&&ointe! Docena to s%ccee! Ca&ito on November 18 1885. 2$e recor! !oes not s$o, ,$' b%t on November /7 1885 #lar ,as a&&ointe! also b' )antos to t$e &osition alrea!' occ%&ie! b' Docena. On December 18 885 t$e )=3) &asse! -esol%tion 7C recogniBing #lar rat$er t$an Docena as t$e legitimate s%ccessor o( t$e late Boar! Member Ca&ito. 2$e (ollo,ing !a' t$e )=3) ,as in e((ect reverse! b' )ecretar' )antos. 2$is action ,as a((irme! in a First *n!orsement !ate! 7an%ar' 0 1881 signe! b' Hea! 34ec%tive #ssistant #g%n!o o( t$e De&artment o( Local Government. 2$e reaction o( t$e )=3) ,as to &ass -esol%tion No. 1 !ate! 7an%ar' 8 1881 ,$ere it reiterate! its &revio%s recognition o( #lar an! !eclare! t$at "t$e recall or!er iss%e! b' )ecretar' )antos !ate! December 18 1885 recalling t$e a&&ointment o( #tt'. #lar $as no legal basis in (act an! in la, an! iss%e! to (it $is ,$imsical ca&ricio%s an! ,is$'D,as$' !esires to t$e !etriment o( !ecenc' an! !%e &rocess o( la,. On t$e same !ate =rovincial =rosec%tor Labra!or $a! ren!ere! an o&inion t$at t$e recall or!er o( )ecretar' )antos ,as "voi! ab initio"H beca%se #larHs rig$t to t$e o((ice "$a! become veste!." *t is not clear i( )ecretar' )antos agree! ,it$ t$ese vie,s b%t at an' rate $e iss%e! on Febr%ar' /5 1881 anot$er recall or!er t$is time a!!resse! to Docena. Docena t$en came to t$is Co%rt in a &etition (or man!am%s to com&el t$e res&on!ents to recogniBe an! a!mit $im as a la,(%ll' a&&ointe! member o( t$e )=3) an! also see+s to $ol! t$em o((iciall' an! &ersonall' liable in !amages (or t$eir re(%sal to !o so in s&ite o( $is clear title to t$e !is&%te! o((ice. 2-O iss%e! en9oining bot$ Docena an! #lar (rom ass%ming t$e o((ice o( member o( t$e )angg%niang =anlala,igan o( 3astern )amar. *ss%e: 1. 6ON Docena ma' be recogniBe! an! &ro&erl' a!mitte! to o((ice.
/11

)ec. C5. =ermanent Kacancies in Local )angg%nians. S *n case o( &ermanent vacanc' in t$e sangg%niang &anlala,igan sangg%niang &anl%ngso! sangg%niang ba'an or sangg%niang baranga' t$e =resi!ent o( t$e =$ili&&ines %&on recommen!ation o( t$e Minister o( Local Government s$all a&&oint a .%ali(ie! &erson to (ill t$e vacanc' in t$e sangg%niang &anlala,igan an! t$e sangg%niang &anl%ngso!A t$e governor in t$e case o( sangg%niang ba'an membersA or t$e cit' or m%nici&al ma'or in t$e case o( sangg%niang baranga' members. 34ce&t (or t$e sangg%niang baranga' t$e a&&ointee s$all come (rom t$e &olitical &art' o( t$e sangg%nian member ,$o ca%se! t$e vacanc' an! s$all serve t$e %ne4&ire! term o( t$e vacant o((ice. 2$e &etitioner ma+es t$e &oint an! it $as not been !is&%te! b' t$e res&on!ents t$at bot$ $e an! Ca&ito ran (or t$e &rovincial boar! in t$e 1888 elections %n!er t$e banner o( La+as ng Bansa. Later t$e' bot$ 9oine! t$e Laban ng Demo+rati+ong =ili&ino %n!er t$e lea!ers$i& o( )&ea+er Mitra ,$o a!ministere! t$e oat$ o( o((ice to $im ,$en $e ,as a&&ointe! to t$e )=3) on November 18 1885. Docena arg%es t$at $e $as a &re(erential rig$t to t$e !is&%te! o((ice even on e.%itable gro%n!s beca%se $e &lace! nint$ in t$e election ne4t to Ca&ito com&are! to #lar ,$o !i! not even r%n (or t$e o((ice. From t$e tenor o( t$e a&&ointment e4ten!e! to Docena on November 18 1885 t$ere is no .%estion t$at it ,as inten!e! to be &ermanent to (ill t$e &ermanent vacanc' ca%se! b' Ca&itoHs !eat$. #s s%c$ it ,as to be vali! (or t$e %ne4&ire! &ortion o( t$e term o( t$e !ecease! member ,$o ,as entitle! to serve "%ntil noon o( 7%ne 15 188/ " in accor!ance ,it$ #rticle JK*** )ection / o( t$e Constit%tion. 2$e sai! a&&ointment $a! been acce&te! b' Docena ,$o $a! in (act alrea!' ass%me! o((ice as member o( t$e )=3) as &er certi(ication o( t$e =rovincial )ecretar'. For all legal intents an! &%r&oses t$e &etitionerHs a&&ointment $a! alrea!' become com&lete an! en(orceable at t$e time it ,as s%&&ose! to $ave been "s%&erse!e!" b' t$e a&&ointment in (avor o( #lar. 2$e res&on!ents are ambivalent abo%t t$e &o,er o( t$e )ecretar' o( Local Government to recall $is a&&ointments. 2$e' !escribe! t$e a&&ointment as ",$imsical ca&ricio%s an! ,is$'D,as$'" b%t t$e' $a! no similar com&laints abo%t t$e recall o( DocenaHs a&&ointment alt$o%g$ also a&&arentl' in!ecisive. On t$e contrar' t$e' maintaine! a !ee& silence abo%t t$is ot$er recall an! insiste! sim&l' t$at t$e s%bse.%ent a&&ointment o( #lar $a! invali!ate! t$e earlier a&&ointment o( Docena. *t is note,ort$' t$at absol%tel' no reason ,as given (or t$e recall o( DocenaHs a&&ointment ;or (or t$at matter t$e recall o( #larHs a&&ointment<. *t a&&ears t$at a(ter a&&ointing Docena an! later t,ice s%staining $is title to t$e o((ice )ecretar' )antos sim&l' $a! a c$ange o( $eart an! !eci!e! to a,ar! t$e &osition to #lar. DocenaHs a&&ointment $aving been iss%e! an! acce&te! earlier an! t$e &etitioner $aving alrea!' ass%me! o((ice $e co%l! not t$erea(ter be 9%st recalle! an! re&lace! to accommo!ate #lar. 2$e a&&ointment ,as &ermanent in nat%re an! (or t$e %ne4&ire! &ortion o( t$e !ecease! &re!ecessorHs term. Docena $a! alrea!' ac.%ire! sec%rit' o( ten%re in t$e &osition an! co%l! be remove! t$ere(rom onl' (or an' o( t$e ca%ses an! con(ormabl' to t$e &roce!%re &rescribe! b' t$e LGC. 2$ese re.%irements co%l! not be circ%mvente! b' t$e sim&le &rocess o( recalling $is a&&ointment. 6$atever gave t$e )=3) t$e im&ression t$at t$e .%estione! a&&ointments ,ere revocable at ,ill can onl' be le(t to con9ect%reA ,$at is certain is t$at it ,as not base! on care(%l legal st%!'. 2$e =rovincial =rosec%torHs o&inion t$at t$e o((ice $a! "become veste!" in #lar s%((ers (rom t$e same (la, an! a lac+ o( %n!erstan!ing o( t$e nat%re o( a &%blic o((ice. =olitical rat$er t$an legal consi!erations seem to $ave in(l%ence! t$e action o( t$e &rovincial government in re9ecting t$e &etitionerHs claim !es&ite its obvio%s merit. 6ON man!am%s is t$e &ro&er action. 2$e res&on!ents also arg%e t$at t$e &etitioner s$o%l! $ave so%g$t to en(orce $is claime! rig$t in a &etition not (or man!am%s b%t (or .%o ,arranto as $is &%r&ose is to c$allenge #larHs title to t$e !is&%te! o((ice. 2$at is onl' secon!ar' in t$is case. 2$e real &%r&ose o( t$e &resent &etition is to com&el t$e res&on!ent )=3) to recogniBe an! a!mit Docena as a member o( t$e bo!' b' virt%e o( a vali! a&&ointment e4ten!e! to $im b' t$e )ecretar' o( Local Government.
/.
/10

Man!am%s is em&lo'e! to com&el t$e &er(ormance o( a ministerial !%t' to ,$ic$ t$e &etitioner is entitle!. *n arg%ing t$at t$e recognition an! a!mission o( t$e &etitioner is not a ministerial !%t' t$e res&on!ents are asserting t$e !iscretion to revie, an! i( t$e' so !eci!e re9ect t$e )ecretar'Hs a&&ointment. 2$e' $ave no s%c$ a%t$orit'. Face! ,it$ a strictl' legal .%estion t$e' $a! no rig$t an! com&etence to resolve it in t$eir !iscretion. 6$at t$e' s$o%l! $ave !one ,as reserve t$eir 9%!gment on t$e matter leaving it to t$e co%rts o( 9%stice to !eci!e ,$ic$ o( t$e con(licting claims s$o%l! be %&$el!. #s a local legislative bo!' s%b9ect to t$e general s%&ervision o( t$e =resi!ent o( t$e =$ili&&ines t$e )=3) $a! no !iscretion to r%le on t$e vali!it' o( t$e !ecisions o( t$e )ecretar' o( Local Government acting as $er alter ego. 3ven ass%ming t$at t$e &ro&er reme!' is a &etition (or .%o ,arranto t$e Co%rt ma' in its o,n !iscretion consi!er t$e &resent &etition a. s%c$ an! !eal ,it$ it accor!ingl'. 6e (in! t$at as a &etition (or .%o ,arranto it com&lies ,it$ t$e &rescribe! re.%irements to ,it t$at it be (ile! on time an! b' a &ro&er &art' asserting title to t$e o((ice also claime! b' t$e res&on!ent. #cting t$ereon ,e $ol! t$at Docena $as &rove! $is rig$t to t$e !is&%te! o((ice an! co%l! not be legall' re&lace! b' #lar. /. 6ON !amages ma' be claime!. 2$e Co%rt ,ill ma+e no a,ar! o( !amages t$ere being no s%((icient &roo( to overcome t$e &res%m&tion t$at t$e res&on!ents $ave acte! in goo! (ait$ albeit erroneo%sl'. Nevert$eless t$e &etitioner is entitle! to t$e &a'ment o( t$e salaries an! ot$er bene(its a&&%rtenant to t$e o((ice o( a Member o( t$e )angg%niang =anlala,igan o( 3astern )amar (rom t$e time o( $is ass%m&tion o( o((ice an! %ntil $e is act%all' a!mitte! or reinstate!. *e Rama v. CA Facts: @&on $is ass%m&tion to t$e &osition o( Ma'or o( =agbilao W%eBon !e -ama ,rote a letter !ate! 7%l' 11 188C to t$e Civil )ervice Commission see+ing t$e recall o( t$e a&&ointments o( (o%rteen ;10< m%nici&al em&lo'ees. De -ama 9%sti(ie! $is recall re.%est on t$e allegation t$at t$e a&&ointments o( t$e sai! em&lo'ees ,ere Emi!nig$tF a&&ointments o( t$e (ormer ma'or #be9a !one in violation o( #rticle K** )ection 1C o( t$e 1887 Constit%tion ,$ic$ &rovi!es t$at t,o mont$s imme!iatel' be(ore t$e ne4t &resi!ential elections an! %& to t$e en! o( $is term a =resi!ent or #cting =resi!ent s$all not ma+e a&&ointments e4ce&t tem&orar' a&&ointments to e4ec%tive &ositions ,$en contin%e! vacancies t$erein ,ill &re9%!ice &%blic service or en!anger &%blic sa(et'. 6$ile t$e matter ,as &en!ing be(ore t$e C)C t$ree o( t$e em&lo'ees (ile! ,it$ t$e C)C a claim (or &a'ment o( t$eir salaries alleging t$at alt$o%g$ t$eir a&&ointments ,ere !eclare! &ermanent b' G%lim Director ** o( t$e C)C Fiel! O((ice base! in W%eBon !e -ama ,it$$el! t$e &a'ment o( t$eir salaries an! bene(its &%rs%ant to O((ice Or!er No. 8CD51 ,$ic$ ,as iss%e! on 7%ne 15 188C ,$erein t$e a&&ointments o( t$e sai! 10 em&lo'ees ,ere recalle!. 2$e C)C (o%n! t$em entitle! to t$eir salaries. On #&ril 15 188G t$e C)C !enie! !e -ama>s re.%est (or t$e recall o( t$e a&&ointments o( t$e 10 em&lo'ees (or lac+ o( merit. 2$e C)C also cite! -%le K )ections 8 an! 15 o( t$e Omnib%s -%les an! !eclare! t$at t$e a&&ointments o( t$e sai! em&lo'ees ,ere iss%e! in accor!ance ,it$ &ertinent la,s. 2$%s t$e same ,ere e((ective imme!iatel' an! cannot be ,it$!ra,n or revo+e! b' t$e a&&ointing a%t$orit' %ntil !isa&&rove! b' t$e C)C. 2$e C)C also !ismisse! &etitioner>s allegation t$at t$ese ,ere Emi!nig$tF a&&ointments &ointing o%t t$at t$e Constit%tional &rovision relie! %&on b' &etitioner &ro$ibits onl' t$ose a&&ointments ma!e b' an o%tgoing =resi!ent an! cannot be ma!e to a&&l' to local elective o((icials. M- to C)C !enie!. C# a((irme!. M- !enie!. *ss%e: 6ON !e -ama vali!l' recalle! t$e a&&ointments. NO. 2$e recor!s reveal t$at ,$en t$e &etitioner bro%g$t t$e matter o( recalling t$e a&&ointments o( t$e 10 be(ore t$e C)C t$e onl' reason $e cite! to 9%sti(' $is action ,as t$at t$ese ,ere Emi!nig$t a&&ointmentsF t$at are (orbi!!en %n!er #rticle K** )ection 1C o( t$e Constit%tion. Ho,ever t$e C)C r%le! an! correctl' so t$at t$e sai! &ro$ibition a&&lies onl' to &resi!ential a&&ointments. *n tr%t$ an! in (act t$ere is no la, t$at &ro$ibits local elective o((icials (rom ma+ing a&&ointments !%ring t$e last !a's o( $is or $er ten%re. =etitioner certainl' !i! not raise t$e iss%e o( (ra%! on t$e &art o( t$e o%tgoing ma'or ,$o ma!e t$e a&&ointments. Neit$er !i! $e allege t$at t$e sai! a&&ointments ,ere tainte! b' irreg%larities or anomalies t$at breac$e! la,s an! reg%lations governing
/1C

a&&ointments. His solitar' reason (or recalling t$ese a&&ointments ,as t$at t$e' ,ere to $is &ersonal belie( Emi!nig$t a&&ointmentsF ,$ic$ t$e o%tgoing ma'or $a! no a%t$orit' to ma+e. 2$e (o%rteen ;10< em&lo'ees ,ere !%l' a&&ointe! (ollo,ing t,o meetings o( t$e =ersonnel )election Boar! $el! on Ma' 11 an! 7%ne /G 188C. 2$ere is no s$o,ing t$at an' o( t$e &rivate res&on!ents ,ere not .%ali(ie! (or t$e &ositions t$e' ,ere a&&ointe! to. Moreover t$eir a&&ointments ,ere !%l' atteste! to b' t$e Hea! o( t$e C)C (iel! o((ice at L%cena Cit'. B' virt%e t$ereo( t$e' $a! alrea!' ass%me! t$eir a&&ointive &ositions even be(ore &etitioner $imsel( ass%me! $is electe! &osition as to,n ma'or. Conse.%entl' t$eir a&&ointments too+ e((ect imme!iatel' an! cannot be %nilaterall' revo+e! or recalle! b' &etitioner. *t $as been $el! t$at %&on t$e iss%ance o( an a&&ointment an! t$e a&&ointee>s ass%m&tion o( t$e &osition in t$e civil service E$e ac.%ires a legal rig$t ,$ic$ cannot be ta+en a,a' eit$er b' revocation o( t$e a&&ointment or b' removal e4ce&t (or ca%se an! ,it$ &revio%s notice an! $earing.F Moreover it is ,ellDsettle! t$at t$e &erson ass%ming a &osition in t$e civil service %n!er a com&lete! a&&ointment ac.%ires a legal not 9%st an e.%itable rig$t to t$e &osition. 2$is rig$t is &rotecte! not onl' b' stat%te b%t b' t$e Constit%tion as ,ell ,$ic$ rig$t cannot be ta+en a,a' b' eit$er revocation o( t$e a&&ointment or b' removal %nless t$ere is vali! ca%se to !o so &rovi!e! t$at t$ere is &revio%s notice an! $earing. =etitioner a!mits t$at $is ver' (irst o((icial act %&on ass%ming t$e &osition o( to,n ma'or ,as to iss%e O((ice Or!er No. 8CD51 ,$ic$ recalle! t$e a&&ointments o( t$e &rivate res&on!ents. 2$ere ,as no &revio%s notice m%c$ less a $earing accor!e! to t$e latter. Clearl' it ,as &etitioner ,$o acte! in %n!%e $aste to remove t$e &rivate res&on!ents ,it$o%t regar! (or t$e sim&le re.%irements o( !%e &rocess o( la,. *n !oing so $e overste&&e! t$e bo%n!s o( $is a%t$orit'. 6$ile $e arg%es t$at t$e a&&ointing &o,er $as t$e sole a%t$orit' to revo+e sai! a&&ointments t$ere is no !ebate t$at $e !oes not $ave blan+et a%t$orit' to !o so. Neit$er can $e .%estion t$e C)C>s 9%ris!iction to a((irm or revo+e t$e recall.
-%le K )ection 8 o( t$e Omnib%s *m&lementing -eg%lations

o( t$e -evise! #!ministrative Co!e s&eci(icall' &rovi!es t$at Ean a&&ointment acce&te! b' t$e a&&ointee cannot be ,it$!ra,n or revo+e! b' t$e a&&ointing a%t$orit' an! s$all remain in (orce an! in e((ect %ntil !isa&&rove! b' t$e Commission.F 2$%s it is t$e C)C t$at is a%t$oriBe! to recall an a&&ointment initiall' a&&rove! b%t onl' ,$en s%c$ a&&ointment an! a&&roval are &roven to be in !isregar! o( a&&licable &rovisions o( t$e civil service la, an! reg%lations. )ection 15 o( t$e same r%le &rovi!es: #n a&&ointment iss%e! in accor!ance ,it$ &ertinent la,s an! r%les s$all ta+e e((ect imme!iatel' %&on its iss%ance b' t$e a&&ointing a%t$orit' an! i( t$e a&&ointee $as ass%me! t$e !%ties o( t$e &osition $e s$all be entitle! to receive $is salar' at once ,it$o%t a,aiting t$e a&&roval o( $is a&&ointment b' t$e Commission. 2$e a&&ointment s$all remain e((ective %ntil !isa&&rove! b' t$e Commission. *n no case s$all an a&&ointment ta+e e((ect earlier t$an t$e !ate o( its iss%ance. )ection /5 o( -%le K* also &rovi!es: Not,it$stan!ing t$e initial a&&roval o( an a&&ointment t$e same ma' be recalle! on an' o( t$e (ollo,ing gro%n!s:;a< NonDcom&liance ,it$ t$e &roce!%res?criteria &rovi!e! in t$e agenc'>s Merit =romotion =lanA ;b< Fail%re to &ass t$ro%g$ t$e agenc'>s )election?=romotion Boar!A ;c< Kiolation o( t$e e4isting collective agreement bet,een management an! em&lo'ees relative to &romotionA or ;!< Kiolation o( ot$er e4isting civil service la, r%les an! reg%lations 2$e a&&ointments o( t$e &rivate res&on!ents ma' onl' be recalle! on t$e aboveDcite! gro%n!s. #n! 'et t$e onl' reason a!vance! b' t$e &etitioner to 9%sti(' t$e recall ,as t$at t$ese ,ere Emi!nig$t a&&ointments.F 2$e C)C correctl' r%le! $o,ever t$at t$e constit%tional &ro$ibition on soD calle! Emi!nig$t a&&ointments F s&eci(icall' t$ose ma!e ,it$in t,o ;/< mont$s imme!iatel' &rior to t$e ne4t &resi!ential elections a&&lies onl' to t$e =resi!ent or #cting =resi!ent. *( ever t$ere ,ere ot$er &roce!%ral or legal re.%irements t$at ,ere violate! in im&lementing t$e a&&ointments o( t$e &rivate res&on!ents t$e same ,ere not seasonabl' bro%g$t be(ore t$e Civil )ervice Commission. 2$ese cannot be raise! (or t$e (irst time on a&&eal.
/1G

*avi v. COM%L%C to above a!o&te! a ECalen!ar o( #ctivities an! List an! =erio!s o( Certain =ro$ibite! #cts (or t$e Ma' 1/ 1887 Baranga' 3lections.F On t$e ot$er $an! Comelec -esol%tion /887 &rom%lgate! on Febr%ar' C 1887 move! certain !ates (i4e! in -esol%tion /885. #cting on t$e &etition t$e Co%rt on Febr%ar' /C 1887 re.%ire! res&on!ents to s%bmit t$eir comment t$ereon. 2$e Co%rt (%rt$er resolve! to consoli!ate t$e t,o cases inasm%c$ as t$e' raise! basicall' t$e same iss%e. -es&on!ent Commission (ile! its Comment on Marc$ G 1887 an! t$e )olicitor General in re&resentation o( t$e ot$er res&on!ent (ile! $is on Marc$ G 1887. =etitioner>s @rgent Omnib%s Motion (or oral arg%ment an! tem&orar' restraining or!er ,as note! b%t not grante!. 2$e &etition ,as !eeme! s%bmitte! (or resol%tion b' t$e Co%rt ,it$o%t nee! o( memoran!a. *ss%es: 1. 6$ic$ la, governs t$e term o( o((ice o( baranga' o((icials: -# 71G5 or -# GG78T 71G5. -# 71G5 t$e LGC ,as enacte! later t$an -# GG78. *t is basic t$at in case o( an irreconciliable con(lict bet,een t,o la,s o( !i((erent vintages t$e later enactment &revails. Legis &osteriores &riores contrarias abrogant. 2$e rationale is sim&le: a later la, re&eals an earlier one beca%se it is t$e later legislative ,ill. *t is to be &res%me! t$at t$e la,ma+ers +ne, t$e ol!er la, an! inten!e! to c$ange it. *n enacting t$e ol!er la, t$e legislators co%l! not $ave +no,n t$e ne,er one an! $ence co%l! not $ave inten!e! to c$ange ,$at t$e' !i! not +no,. @n!er t$e Civil Co!e la,s are re&eale! onl' b' s%bse.%ent ones an! not t$e ot$er ,a' aro%n!. @n!er )ec. 01Dc o( -# 71G5 t$e term o( o((ice o( baranga' o((icials ,as (i4e! at Et$ree ;1< 'ears ,$ic$ s$all begin a(ter t$e reg%lar election o( baranga' o((icials on t$e secon! Mon!a' o( Ma' 1880.F 2$is &rovision is clearl' inconsistent ,it$ an! re&%gnant to )ec. 1 o( -# GG78 ,$ic$ states t$at s%c$ Eterm s$all be (or (ive 'ears.F Note t$at bot$ la,s re(er to t$e same o((icials ,$o ,ere electe! Eon t$e secon! Mon!a' o( Ma' 1880.F -# GG78 re.%ires t$e baranga' voters to elect seven +aga,a!s an! t$e can!i!ate obtaining t$e $ig$est n%mber o( votes s$all a%tomaticall' be t$e &%nong baranga'. -# GGC1 em&o,ers t$e seven electe! baranga' +aga,a!s to select t$e &%nong baranga' (rom among t$emselves. On t$e ot$er $an! t$e Local #%tonom' Co!e man!ates a !irect
Facts ;(irst case<: *n $is ca&acit' as baranga' c$airman o( Baranga' 77 Zone 7 Maloo+an Cit' an! as &resi!ent o( t$e Liga ng mga Baranga' sa =ili&inas Davi! (ile! on December / 188G a &etition (or &ro$ibition %n!er -%le GC o( t$e -%les o( Co%rt to &ro$ibit t$e $ol!ing o( t$e baranga' election sc$e!%le! on t$e secon! Mon!a' o( Ma' 1887. On 7an%ar' /8 1887 t$e )olicitor General (ile! $is (o%rD&age Comment si!ing ,it$ &etitioner an! &ra'ing t$at Et$e election sc$e!%le! on Ma' 1/ 1887 be $el! in abe'ance.F 2$e COM3L3C (ile! a se&arate Comment !ate! Febr%ar' 1 1887 o&&osing t$e &etition. On Febr%ar' 11 1887 t$e Co%rt iss%e! a -esol%tion giving !%e co%rse to t$e &etition an! re.%iring t$e &arties to (ile sim%ltaneo%s memoran!a. *t also re.%este! (ormer )enator #.%ilino W. =imentel 7r. to act as amic%s c%riae. *t note! b%t !i! not grant &etitioner>s @rgent Motion (or *ss%ance o( 2em&orar' -estraining Or!er an!?or 6rit o( =reliminar' *n9%nction !ate! 7an%ar' 11 1887 ;as ,ell as $is @rgent 34D=arte )econ! Motion to t$e same e((ect !ate! Marc$ G 1887<. #ccor!ingl' t$e &arties (ile! t$eir res&ective memoran!a. 2$e =etition (or Leave to *ntervene (ile! on Marc$ 17 1887 b' =%nong Baranga' -o!son F. Ma'or ,as !enie! as it ,o%l! 9%st %n!%l' !ela' t$e resol%tion o( t$e case $is interest li+e t$ose o( all ot$er baranga' o((icials being alrea!' a!e.%atel' re&resente! b' =etitioner Davi! ,$o (ile! t$is &etition as E&resi!ent o( t$e Liga ng mga Baranga' sa =ili&inas.F Facts ;secon! case<: On Febr%ar' /5 1887 =etitioner Liga ng mga Baranga' W%eBon Cit' C$a&ter re&resente! b' its &resi!ent -illon (ile! a &etition Eto see+ a 9%!icial revie, b' certiorari to !eclare as %nconstit%tional: 1. )ection 01;c< o( -.#. 71G5 ,$ic$ rea!s as (ollo,s: ;c< 2$e term o( o((ice o( baranga' o((icials an! members o( t$e sangg%niang +abataan s$all be (or t$ree ;1< 'ears ,$ic$ s$all begin a(ter t$e reg%lar election o( baranga' o((icials on t$e secon! Mon!a' o( Ma' 1880.> /. COM3L3C -esol%tion Nos. /885 an! /887 (i4ing t$e !ate o( t$e $ol!ing o( t$e baranga' elections on Ma' 1/ 1887 an! ot$er activities relate! t$eretoA 1. 2$e b%!getar' a&&ro&riation o( =055 million containe! in -e&%blic #ct No. 8/C5 ot$er,ise +no,n as t$e General #&&ro&riations #ct o( 1887 inten!e! to !e(ra' t$e costs an! e4&enses in $ol!ing t$e 1887 baranga' electionsAF Comelec -esol%tion /885 &rom%lgate! on December /7 188G an! re(erre!
/17

vote on t$e baranga' c$airman b' t$e entire baranga' electorate se&aratel' (rom t$e seven +aga,a!s. Hence %n!er t$e Co!e voters elect eig$t baranga' o((icials namel' t$e &%nong baranga' &l%s t$e seven +aga,a!s. @n!er bot$ -# GG78 an! GGC1 t$e' vote (or onl' seven +aga,a!s an! not (or t$e baranga' c$airman. D%ring t$e baranga' elections $el! on Ma' 8 1880 ;secon! Mon!a'< t$e voters act%all' an! !irectl' electe! one &%nong baranga' an! seven +aga,a!s. *( ,e agree ,it$ t$e t$esis o( &etitioners it (ollo,s t$at all t$e &%nong baranga's ,ere electe! illegall' an! t$%s =etitioner #le4 Davi! cannot claim to be a vali!l' electe! baranga' c$airman m%c$ less &resi!ent o( t$e national leag%e o( baranga's ,$ic$ $e &%r&orts to re&resent in t$is &etition. *t t$en necessaril' (ollo,s also t$at $e is not t$e real &art'DinD interest an! on t$at gro%n! $is &etition s$o%l! be s%mmaril' !ismisse!. *n enacting t$e general a&&ro&riations act o( 1887 U11V Congress a&&ro&riate! t$e amo%nt o( =055 million to cover e4&enses (or t$e $ol!ing o( baranga' elections t$is 'ear. Li+e,ise %n!er )ec. 7 o( -# 8188 Congress or!aine! t$at a general registration o( voters s$all be $el! Eimme!iatel' a(ter t$e baranga' elections in 1887.F 2$ese are clear an! e4&ress contem&oraneo%s statements o( Congress t$at baranga' o((icials s$all be electe! t$is Ma' in accor!ance ,it$ )ec. 01Dc o( -# 71G5. *n =aras vs. Comelec U10V t$is Co%rt sai! t$at Et$e ne4t reg%lar election involving t$e baranga' o((ice concerne! is barel' seven ;7< mont$s a,a' t$e same $aving been sc$e!%le! in Ma' 1887.F 2$is 9%!icial !ecision &er #rticle 8 o( t$e Civil Co!e is no, a E&art o( t$e legal s'stem o( t$e =$ili&&ines.F =etitioners &om&o%sl' claim t$at -# GG78 being a s&ecial la, s$o%l! &revail over -# 71G5 an allege! general la, &%rs%ant to t$e !octrine o( generalia s&ecialib%s non !erogant. =etitioners are ,rong. -# 71G5 is a co!i(ie! set o( la,s t$at s&eci(icall' a&&lies to local government %nits. *t s&eci(icall' an! !e(initivel' &rovi!es in its )ec. 01Dc t$at Et$e term o( o((ice o( baranga' o((icials s$all be (or t$ree 'ears.F *t is a s&ecial &rovision t$at a&&lies onl' to t$e term o( baranga' o((icials ,$o ,ere electe! on t$e secon! Mon!a' o( Ma' 1880. 6it$ s%c$ &artic%larit' t$e &rovision cannot be !eeme! a general la,. =etitioner ma' be correct in alleging t$at -# GG78 is a s&ecial la, b%t t$e' are incorrect in stating ;,it$o%t $o,ever giving t$e reasons t$ere(or< t$at -# 71G5 is necessaril' a general la,. *t is a s&ecial la, inso(ar as it governs t$e term o( o((ice o( baranga' o((icials. *n its re&ealing cla%se -# 71G5 states t$at Eall general an! s&ecial la,s ,$ic$ are inconsistent ,it$ an' o( t$e &rovisions o( t$is Co!e are $ereb' re&eale! or mo!i(ie! accor!ingl'.F 2$ere being a clear re&%gnance an! incom&atibilit' bet,een t$e t,o s&eci(ic &rovisions t$e' cannot stan! toget$er. 2$e later la, -# 71G5 s$o%l! t$%s &revail in accor!ance ,it$ its re&ealing cla%se. 6$en a s%bse.%ent la, encom&asses entirel' t$e s%b9ect matter o( t$e (ormer enactments t$e latter is !eeme! re&eale!. /. 6ON -# 71G5 inso(ar as it s$ortene! s%c$ term to onl' t$ree 'ears constit%tional. :3). )3C. 8. 2$e term o( o((ice o( elective local o((icials e4ce&t baranga' o((icials ,$ic$ s$all be !etermine! b' la, s$all be t$ree 'ears an! no s%c$ o((icial s$all serve (or more t$an t$ree consec%tive terms. Kol%ntar' ren%nciation o( t$e o((ice (or an' lengt$ o( time s$all not be consi!ere! as an interr%&tion in t$e contin%it' o( $is service (or t$e (%ll term (or ,$ic$ $e ,as electe!. =etitioner Liga ng mga Baranga' W%eBon Cit' C$a&ter &osits t$at b' e4ce&ting baranga' o((icials ,$ose Eterm s$all be !etermine! b' la,F (rom t$e general &rovision (i4ing t$e term o( Eelective local o((icialsF at t$ree 'ears t$e Constit%tion t$ereb' im&lie!l' &ro$ibits Congress (rom legislating a t$reeD'ear term (or s%c$ o((icers. 6e (in! t$is t$eor' rat$er novel b%t nonet$eless logicall' an! legall' (la,e!. @n!o%bte!l' t$e Constit%tion !i! not e4&ressl' &ro$ibit Congress (rom (i4ing an' term o( o((ice (or baranga' o((icials. *t merel' le(t t$e !etermination o( s%c$ term to t$e la,ma+ing bo!' ,it$o%t an' s&eci(ic limitation or &ro$ibition t$ereb' leaving to t$e la,ma+ers (%ll !iscretion to (i4 s%c$ term in accor!ance ,it$ t$e e4igencies o( &%blic service. *t m%st be remembere! t$at ever' la, $as in its (avor t$e &res%m&tion o( constit%tionalit'. For a la, to be n%lli(ie! it m%st be s$o,n t$at t$ere is a clear an! %ne.%ivocal ;not 9%st im&lie!< breac$ o( t$e Constit%tion. 2o stri+e !o,n a la, as %nconstit%tional t$ere m%st be a
/18

clear an! %ne.%ivocal s$o,ing t$at ,$at t$e (%n!amental la, &ro$ibits t$e stat%te &ermits. 2$e &etitioners $ave miserabl' (aile! to !isc$arge t$is b%r!en an! to s$o, clearl' t$e %nconstit%tionalit' t$e' aver. 2$ere is absol%tel' no !o%bt in o%r min! t$at )ec. 01Dc o( -# 71G5 is constit%tional. )ec. 8 #rticle J o( t$e Constit%tion DD limiting t$e term o( all elective local o((icials to t$ree 'ears e4ce&t t$at o( baranga' o((icials ,$ic$ Es$all be !etermine! b' la,F DD ,as an amen!ment &ro&ose! b' Constit%tional Commissioner Davi!e. #ccor!ing to Fr. 7oa.%in G. Bernas ).7. t$e amen!ment ,as Erea!il' acce&te! ,it$o%t m%c$ !isc%ssion an! (ormall' a&&rove!.F 1. 6ON &etitioners esto&&e! (rom claiming a term ot$er t$an t$at &rovi!e! %n!er -# 71G5. *( as claime! b' &etitioners t$e a&&licable la, is -# GG78 t$en ;1< =etitioner Davi! s$o%l! not $ave r%n an! co%l! not $ave been electe! c$airman o( $is baranga' beca%se %n!er -# GG78 t$ere ,as to be no !irect election (or t$e &%nong baranga'A t$e +aga,a! can!i!ate ,$o obtaine! t$e $ig$est n%mber o( votes ,as to be a%tomaticall' electe! baranga' c$airmanA ;/< t$%s a&&l'ing sai! la, t$e &%nong baranga' s$o%l! $ave been -%ben Magalona ,$o obtaine! t$e $ig$est n%mber o( votes among t$e +aga,a!s DD 1C5 ,$ic$ ,as m%c$ more t$an Davi!>s 11/A ;1< t$e electorate s$o%l! $ave electe! onl' seven +aga,a!s an! not one &%nong baranga' &l%s seven +aga,a!s. *n ot$er ,or!s (ollo,ing &etitioners> o,n t$eor' t$e election o( =etitioner Davi! as ,ell as all t$e baranga' c$airmen o( t$e t,o Liga &etitioners ,as illegal. 2$e s%m total o( t$ese abs%r!ities in &etitioners> t$eor' is t$at baranga' o((icials are esto&&e! (rom as+ing (or an' term ot$er t$an t$at ,$ic$ t$e' ran (or an! ,ere electe! to %n!er t$e la, governing t$eir ver' claim to s%c$ o((ices: namel' -# 71G5 t$e LGC. =etitioners> belate! claim o( ignorance as to ,$at la, governe! t$eir election to o((ice in 1880 is %nacce&table beca%se %n!er #rt. 1 o( t$e Civil Co!e E;i<gnorance o( t$e la, e4c%ses no one (rom com&liance t$ere,it$.F Alinsug v. R'C Facts: Zonsa'!a #lins%g ,as a reg%lar em&lo'ee o( t$e m%nici&al government o( 3scalante Negros Occi!ental ,$en s$e receive! a &ermanent a&&ointment as Cler+ *** in t$e o((ice o( t$e M%nici&al =lanning an! Develo&ment Coor!inator o( t$e same m%nici&alit'. On 15 7%ne 188/ s$e receive! an or!er (rom t$e ne,l' &roclaime! ma'or =onsica !etailing $er to t$e O((ice o( t$e Ma'or. *n com&liance ,it$ t$e or!er s$e re&orte! to sai! o((ice t$e (ollo,ing !a'. On 18 7%ne 188/ Zonsa'!a absente! $ersel( (rom ,or+ allege!l' to atten! to (amil' matters. )$e $a! as+e! &ermission (rom t$e &ersonnel o((icer b%t not (rom t$e ma'or. On /1 7%ne 188/ Ma'or =onsica iss%e! O((ice Or!er No. 11 s%s&en!ing Zonsa'!a (or one mont$ an! one !a' commencing on /0 7%ne 188/ (or "a sim&le miscon!%ct . . . ,$ic$ can also be categoriBe! as an act o( ins%bor!ination." 2$e or!er also state! t$at t$e s%s&ension "carries ,it$ it (or(eit%re o( . . . bene(its s%c$ as . . . salar' an! =3-# an! leave cre!its !%ring t$e !%ration o( its e((ectivit'." Fort$,it$ Zonsa'!a (ile! ,it$ t$e -2C a &etition !ate! 57 7%l' 188/ (or "in9%nction ,it$ !amages an! &ra'er (or tem&orar' restraining or!er an! &reliminar' in9%nction" against Ma'or =onsica an! t$e m%nici&al treas%rer. 2$e &etitioner allege! t$at since $er (amil' s%&&orte! Ma'or =onsicaHs rival in t$e 11 Ma' 188/ elections $er s%s&ension ,as an act o( "&olitical ven!etta". )$e (%rt$er allege! t$at sai! res&on!entsH acts ,ere "malicio%s illegal %n,arrante! ,rong(%l an! con!emnable." Ma'or =onsica an! t$e m%nici&al treas%rer (ile! an ans,er to t$e &etition t$ro%g$ &rivate &ractitioner LeBama alleging t$at t$e &etitioner $a! not e4$a%ste! a!ministrative reme!ies an! t$at $er s%s&ension ,as in accor!ance ,it$ la,. 2$e (oregoing elicite! a motion (rom t$e &etitioner &ra'ing t$at t$e ans,er be !isregar!e! an! e4&%nge! (rom t$e recor! an! t$at t$e res&on!ents be all !eclare! in !e(a%lt on t$e gro%n! t$at since t$e res&on!ents ,ere s%e! in t$eir o((icial ca&acities "not incl%!ing t$eir &rivate ca&acities " t$e' s$o%l! $ave been re&resente! b' eit$er t$e m%nici&al legal o((icer or t$e &rovincial legal o((icer or &rosec%tor as &rovi!e! (or b' )ec. 081 ;b< UiV an! U1V o( t$e LGC. *t also cite! )ec. 1 o( -e&. #ct No. 15 an! #rt. 177 o( t$e -evise! =enal Co!e ,$ic$ &enaliBes %s%r&ation o( &%blic a%t$orit'. 2$e res&on!ents o&&ose! t$e motion. Mani(esting t$at t$e m%nici&alit' o( 3scalante $as no legal o((icer t$e' asserte! t$at bot$ t$e LGC an! t$e #!ministrative Co!e o( 1887 !o not $ave an' &rovision "relative to t$e !%t' o( an' &rovincial legal o((icer or &rosec%tor to re&resent a m%nici&alit' or its o((icials in s%its (ile!
/18

against t$em b' an em&lo'ee or a &rivate in!ivi!%al." 2$e' conten!e! t$at it ,as "%nnecessar' to &rovi!e s%c$ a &rovision beca%se t$ere are a!ministrative an! 9%!icial r%lings s%staining t$e vali!it' o( t$e em&lo'ment o( a &rivate co%nsel b' m%nici&al o((icials. Moreover since t$e &etitioner &ra'e! (or t$e a,ar! o( moral !amages " on t$e strengt$ o( t$is Co%rtHs r%ling in #lb%era v. 2orrens 1 t$eir $iring o( a &rivate co%nsel ,as 9%sti(ie!. On /8 #%g%st 188/ #ssistant =rovincial =rosec%tor Daniel M. Killa(lor entere! $is a&&earance as "co%nsel (or -olan!o =. =onsica an! =atricio #. #lvareB in t$eir o((icial ca&acities." 6it$ t$e (iling o( sai! notice at a&&earance on 58 )e&tember 188/ t$e lo,er co%rt iss%e! an Or!er !en'ing &etitioners motion to !eclare t$e res&on!ents in !e(a%lt an! motion to e4&%nge (rom t$e recor! res&on!entsH ans,er. #cting on t$e motion (or reconsi!eration (ile! b' t$e &etitioner t$e lo,er co%rt iss%e! t$e Or!er o( 1G November 188/ !en'ing sai! motion on t$e t$esis t$at since t$e a&&ointment o( a legal o((icer ,as o&tional on t$e &art o( t$e m%nici&al government ;#rt. 081 t$ir! &aragra&$ LGC< an! t$e m%nici&alit' o( 3scalante $a! not in (act !esignate! an' s%c$ legal o((icer &etitionerHs move to !eclare res&on!ents in !e(a%lt "(or $aving retaine! a &rivate co%nsel" ,as not t$ereb' legall' s%stainable. *ss%es: 1. 6ON a &rivate co%nsel ma' re&resent m%nici&al o((icials s%e! in t$eir o((icial ca&acities )ec. 001 ;b< o( t$e LGC &rovi!es t$at in a!!ition to t$e o((icials en%merate! in t$e (irst &aragra&$ t$ereo( t$e ma'or ma' a&&oint among ot$er o((icials en%merate! t$erein a m%nici&al legal o((icer. )ection 081 #rticle 11 o( 2itle K o( t$e Co!e ,$ic$ &rovi!es (or t$e a&&ointment o( local o((icials common to all m%nici&alities cities an! &rovinces states t$at ";t<$e a&&ointment o( a legal o((icer s$all be man!ator' (or t$e &rovincial an! cit' governments an! o&tional (or t$e m%nici&al government." 2$e same section s&eci(ies t$e (%nctions o( t$e legal o((icer an! one o( t$em being t$at $e s$all: ;i< -e&resent t$e local government %nit in all civil actions an! s&ecial &rocee!ings ,$erein t$e local government %nit or an' o((icial t$ereo( in $is o((icial ca&acit' is a &art': =rovi!e! t$at in actions or &rocee!ings ,$ere a com&onent cit' or m%nici&alit' is a &art' a!verse to t$e &rovincial government or to anot$er com&onent cit' or m%nici&alit' a s&ecial legal o((icer ma' be em&lo'e! to re&resent t$e a!verse &art'. *n!ee! it a&&ears t$at t$e la, allo,s a &rivate co%nsel to be $ire! b' a m%nici&alit' onl' ,$en t$e m%nici&alit' is an a!verse &art' in a case involving t$e &rovincial government or anot$er m%nici&alit' or cit' ,it$in t$e &rovince. De G%ia v. 2$e #%!itor General: t$e m%nici&alit'Hs a%t$orit' to em&lo' a &rivate attorne' is e4&ressl' limite! onl' to sit%ations ,$ere t$e &rovincial (iscal ,o%l! be !is.%ali(ie! to serve an! re&resent it. 6it$ )ec. 1G81 o( t$e ol! #!ministrative Co!e as legal basis t$e Co%rt t$erein cite! 3nri.%eB )r. v. GimeneB ,$ic$ en%merate! instances ,$en t$e &rovincial (iscal is !is.%ali(ie! to re&resent in co%rt a &artic%lar m%nici&alit'A i( an! ,$en original 9%ris!iction o( case involving t$e m%nici&alit' is veste! in t$e )%&reme Co%rt ,$en t$e m%nici&alit' is a &art' a!verse to t$e &rovincial government or to some ot$er m%nici&alit' in t$e same &rovince an! ,$en in a case involving t$e m%nici&alit' $e or $is ,i(e or c$il! is &ec%niaril' involve! as $eir legatee cre!itor or ot$er,ise. -amos v. Co%rt o( #&&eals: a m%nici&alit' ma' not be re&resente! b' a &rivate la, (irm ,$ic$ $a! vol%nteere! its services gratis in collaboration ,it$ t$e m%nici&al attorne' an! t$e (iscal as s%c$ re&resentation ,as violative )ec. 1G81 o( t$e ol! #!ministrative Co!e. 2$is strict co$erence to t$e letter o( t$e la, a&&ears to $ave been !ictate! b' t$e (act t$at "t$e m%nici&alit' s$o%l! not be b%r!ene! ,it$ e4&enses o( $iring a &rivate la,'er" an! t$at "t$e interests o( t$e m%nici&alit' ,o%l! be best &rotecte! i( a government la,'er $an!les its litigations." Ho,ever it can $a&&en t$at a government o((icial ostensibl' acting in $is o((icial ca&acit' an! s%e! in t$at ca&acit' is later $el! to $ave e4cee!e! $is a%t$orit'. On t$e one $an! $is !e(ense ,o%l! $ave t$en been %n!er,ritten b' t$e &eo&leHs mone' ,$ic$ or!inaril' s$o%l! $ave been $is &ersonal e4&ense. On t$e ot$er $an! &ersonal liabilit' can attac$ to $im ,it$o%t $o,ever $is $aving $a! t$e bene(it o( assistance o( a co%nsel o( $is o,n c$oice. *n Correa v. CF* o( B%lacan t$e Co%rt $el! t$at in t$e !isc$arge o( governmental (%nctions "m%nici&al cor&orations are res&onsible (or t$e acts o( its o((icers e4ce&t i( an! ,$en t$e onl' to t$e e4tent t$at t$e' $ave acte! b' a%t$orit' o( t$e la, an! in con(ormit' ,it$ t$e
//5

re.%irements t$ereo(." *n s%c$ instance t$is Co%rt $as sanctione! t$at re&resentation b' &rivate co%nsel. #lb%era v. 2orres: a &rovincial governor s%e! in $is o((icial ca&acit' ma' engage t$e services o( &rivate co%nsel ,$en "t$e com&laint contains ot$er allegations an! a &ra'er (or moral !amages ,$ic$ i( !%e (rom t$e !e(en!ants m%st be satis(ie! b' t$em in t$eir &rivate ca&acit'." @rbano v. C$aveB: 2$e acc%se! &%blic o((icial s$o%l! not e4&ect t$e )tate t$ro%g$ t$e O((ice o( t$e )olicitor General to !e(en! $im (or a ,rong(%l act ,$ic$ cannot be attrib%te! to t$e )tate itsel(. *n t$e same lig$t a &%blic o((icial ,$o is s%e! in a criminal case is act%all' s%e! in $is &ersonal ca&acit' inasm%c$ as $is &rinci&al t$e )tate can never be t$e a%t$or o( a ,rong(%l act m%c$ less commit a crime. 2$e +e' t$en to resolving t$e iss%e o( ,$et$er a local government o((icial ma' sec%re t$e services o( &rivate co%nsel in an action (ile! against $im in $is o((icial ca&acit' lies on t$e nat%re o( t$e action an! t$e relie( t$at is so%g$t. *n t$is case t$e #lins%g claims moral an! e4em&lar' !amages as ,ell as litigation e4&enses. Moral !amages cannot generall' be a,ar!e! %nless t$e' are t$e &ro4imate res%lt o( a ,rong(%l act or omission. 34em&lar' !amages on t$e ot$er $an! are not a,ar!e! i( t$e !e(en!ant $a! not acte! in a ,anton o&&ressive or malevolent manner nor in t$e absence o( gross or rec+less negligence. # &%blic o((icial ,$o in t$e &er(ormance o( $is !%t' acts in s%c$ (as$ion !oes so in e4cess o( a%t$orit' an! $is actions ,o%l! be %ltra vires t$at can t$ereb' res%lt in an inc%rrence o( &ersonal liabilit'. an! 1880 to 1881 (or t$e &%r&ose o( com&%ting t$e ta4 on b%siness im&ose! %n!er t$e Local 2a4 Co!e as amen!e!. On October /1 1881 ==C (ile! a mani(estation to t$e e((ect t$at on October 18 1881 =ililla Ma'or Nicome!es =atenia receive! (rom it t$e s%m o( =11M as (%ll satis(action o( t$e aboveDmentione! 9%!gment o( t$e )%&reme Co%rt as evi!ence b' t$e release an! .%itclaim !oc%ments e4ec%te! b' sai! ma'or. #ccor!ingl' on October 11 1881 t$e co%rt belo, iss%e! an or!er !en'ing &lainti(( m%nici&alit'Hs motion (or e4amination an! e4ec%tion o( 9%!gment on t$e gro%n! t$at t$e 9%!gment in .%estion $a! alrea!' been satis(ie!. 2$erea(ter on November /1 1881 #tt'. Men!iola (ile! a motion (or reconsi!eration o( t$e co%rtHs a(oresai! or!er o( October 11 1881 claiming t$at t$e total liabilit' o( !e(en!ant cor&oration to &lainti(( m%nici&alit' amo%nte! to =/0M ,$ile t$e amo%nt involve! in t$e release an! .%itclaim e4ec%te! b' Ma'or =atenia ,as onl' =1/MA an! t$at t$e sai! ma'or co%l! not ,aive t$e balance ,$ic$ re&resents t$e ta4es !%e %n!er t$e 9%!gment to t$e m%nici&alit' an! over ,$ic$ 9%!gment t$e la, (irm o( #tt'. Men!iola $a! registere! t,o liens (or allege! cons%ltanc' services o( /CY an! attorne'sH (ees o( /CY ,$ic$ ,$en .%anti(ie! an! a!!e! amo%nt to more t$an =1/ million. M- !enie!. On Febr%ar' 18 188/ #tt'. Men!iola again ostensibl' in be$al( o( $erein &etitioner m%nici&alit' (ile! a &etition (or certiorari ,it$ %s ,$ic$ &etition ,e re(erre! to t$e Co%rt o( #&&eals (or &ro&er !is&osition. On Marc$ / 188/ ==C (ile! a motion .%estioning #tt'. Men!iolaHs a%t$orit' to re&resent &etitioner m%nici&alit'. Conse.%entl' on Marc$ 11 188/ t$e C# !ismisse! t$e &etition (or $aving been (ile! b' a &rivate co%nsel in violation o( la, an! 9%ris&r%!ence b%t ,it$o%t &re9%!ice to t$e (iling o( a similar &etition b' t$e M%nici&alit' o( =ililla t$ro%g$ t$e &ro&er &rovincial or m%nici&al legal o((icer. 2$e M%nici&alit' (ile! an M-. *ss%e: 6ON #tt'. Men!oBa $as a%t$orit' to (ile a &etition in be$al( o( an! in t$e name o( t$e M%nici&alit' o( =ililla. NO. 2$e matter o( re&resentation o( a m%nici&alit' b' a &rivate attorne' $as been settle! in -amos vs. Co%rt o( #&&eals et al. an! reiterate! in =rovince o( Ceb% vs. *nterme!iate #&&ellate Co%rt et al. ,$ere ,e r%le! t$at &rivate attorne's cannot re&resent a &rovince or m%nici&alit' in la,s%its. )ection 1G81 o( t$e -evise! #!ministrative Co!e &rovi!es: 2$e &rovincial (iscal s$all re&resent t$e &rovince an! an'
Municipalit# o! Pililia v. CA Facts: On Marc$ 17 1888 t$e -2C o( 2ana' -iBal Branc$ 85 ren!ere! 9%!gment in Civil Case No. 5C7D2 in (avor o( t$e M%nici&alit' o( =ililla against ==C or!ering it to &a' b%siness ta4es as ,ell as storage ma'or>s &ermit an! sanitar' ins&ection (ees. 2$e )C a((irme! ,it$ mo!i(ication ;1881 =ililia Case<. 2$is 9%!gment became (inal an! e4ec%tor' on 7%l' 11 1881 an! t$e recor!s ,ere reman!e! to t$e trial co%rt (or e4ec%tion. On October 10 1881 in connection ,it$ t$e e4ec%tion o( sai! 9%!gment #tt'. Men!iola (ile! a motion in be$al( o( &lainti(( m%nici&alit' (or t$e e4amination o( !e(en!ant cor&orationHs gross sales (or t$e 'ears 187G to 1878
//1

m%nici&alit' or m%nici&al !istrict t$ereo( in an' co%rt e4ce&t in cases ,$ereo( original 9%ris!iction is veste! in t$e )%&reme Co%rt or in cases ,$ere t$e m%nici&alit' or m%nici&al !istrict in .%estion is a &art' a!verse to t$e &rovincial government or to some ot$er m%nici&alit' or m%nici&al !istrict in t$e same &rovince. 6$en t$e interests o( a &rovincial government an! o( an' &olitical !ivision t$ereo( are o&&ose! t$e &rovincial (iscal s$all act on be$al( o( t$e &rovince. 6$en t$e &rovincial (iscal is !is.%ali(ie! to serve an' m%nici&alit' or ot$er &olitical s%b!ivision o( a &rovince a s&ecial attorne' ma' be em&lo'e! b' its co%ncil. @n!er t$e above &rovision com&lemente! b' )ection 1 -e&%blic #ct No. //G0 t$e Local #%tonom' La, onl' t$e &rovincial (iscal an! t$e m%nici&al attorne' can re&resent a &rovince or m%nici&alit' in t$eir la,s%its. 2$e &rovision is man!ator'. 2$e m%nici&alit'Hs a%t$orit' to em&lo' a &rivate la,'er is e4&ressl' limite! onl' to sit%ations ,$ere t$e &rovincial (iscal is !is.%ali(ie! to re&resent it. For t$e a(orementione! e4ce&tion to a&&l' t$e (act t$at t$e &rovincial (iscal ,as !is.%ali(ie! to $an!le t$e m%nici&alit'Hs case m%st a&&ear on recor!. *n t$e instant case t$ere is not$ing in t$e recor!s to s$o, t$at t$e &rovincial (iscal is !is.%ali(ie! to act as co%nsel (or t$e M%nici&alit' o( =ililla on a&&eal $ence t$e a&&earance o( $erein &rivate co%nsel is ,it$o%t a%t$orit' o( la,. 2$e s%bmission o( #tt'. Men!iola t$at t$e e4ce&tion is broa! eno%g$ to incl%!e sit%ations ,$erein t$e &rovincial (iscal re(%ses to $an!le t$e case cannot be s%staine!. 2$e (iscalHs re(%sal to re&resent t$e m%nici&alit' is not a legal 9%sti(ication (or em&lo'ing t$e services o( &rivate co%nsel. @nli+e a &racticing la,'er ,$o $as t$e rig$t to !ecline em&lo'ment a (iscal cannot re(%se to &er(orm $is (%nctions on gro%n!s not &rovi!e! (or b' la, ,it$o%t violating $is oat$ o( o((ice. *nstea! o( engaging t$e services o( a s&ecial attorne' t$e m%nici&al co%ncil s$o%l! re.%est t$e )ecretar' o( 7%stice to a&&oint an acting &rovincial (iscal in &lace o( t$e &rovincial (iscal ,$o $as !ecline! to $an!le an! &rosec%te its case in co%rt &%rs%ant to )ection 1G78 o( t$e -evise! #!ministrative Co!e. *t is also signi(icant t$at t$e lac+ o( a%t$orit' o( $erein co%nsel #tt'. Men!iola ,as even raise! b' t$e m%nici&alit' itsel( in its comment an! o&&osition to sai! co%nselHs motion (or e4ec%tion o( $is lien ,$ic$ ,as (ile! ,it$ t$e co%rt a .%o b' t$e o((ice o( t$e =rovincial =rosec%tor o( -iBal in be$al( o( sai! m%nici&alit'. 2$e contention o( #tt'. Men!iola t$at &rivate res&on!ent cannot raise (or t$e (irst time on a&&eal $is lac+ o( a%t$orit' to re&resent t$e m%nici&alit' is %ntenable. 2$e legalit' o( $is re&resentation can be .%estione! at an' stage o( t$e &rocee!ings. *n t$e cases $ereinbe(ore cite! t$e iss%e o( lac+ o( a%t$orit' o( &rivate co%nsel to re&resent a m%nici&alit' ,as onl' raise! (or t$e (irst time in t$e &rocee!ings (or t$e collection o( attorne'Hs (ees (or services ren!ere! in t$e &artic%lar case a(ter t$e !ecision in t$at case $a! become (inal an! e4ec%tor' an!?or $a! been !%l' e4ec%te!. F%rt$ermore even ass%ming t$at t$e re&resentation o( t$e m%nici&alit' b' #tt'. Men!iola ,as !%l' a%t$oriBe! sai! a%t$orit' is !eeme! to $ave been revo+e! b' t$e m%nici&alit' ,$en t$e latter t$ro%g$ t$e m%nici&al ma'or an! ,it$o%t sai! co%nselHs &artici&ation entere! into a com&romise agreement ,it$ $erein &rivate res&on!ent ,it$ regar! to t$e e4ec%tion o( t$e 9%!gment in its (avor an! t$erea(ter (ile! &ersonall' ,it$ t$e co%rt belo, t,o &lea!ings entitle! an! constit%tive o( a ")atis(action o( 7%!gment" an! a "-elease an! W%itclaim". # client b' a&&earing &ersonall' an! &resenting a motion b' $imsel( is consi!ere! to $ave im&lie!l' !ismisse! $is la,'er. Herein co%nsel cannot &reten! to be a%t$oriBe! to contin%e re&resenting t$e m%nici&alit' since t$e latter is entitle! to !is&ense ,it$ $is services at an' time. Bot$ at common la, an! %n!er )ection /G -%le 118 o( t$e -%les o( Co%rt a client ma' !ismiss $is la,'er at an' time or at an' stage o( t$e &rocee!ings an! t$ere is not$ing to &revent a litigant (rom a&&earing be(ore t$e co%rt to con!%ct $is o,n litigation. 2$e client $as also an %n!o%bte! rig$t to com&romise a s%it ,it$o%t t$e intervention o( $is la,'er. 3ven t$e la,'ersH rig$t to (ees (rom t$eir clients ma' not be invo+e! b' t$e la,'ers t$emselves as a gro%n! (or !isa&&roving or $ol!ing in abe'ance t$e a&&roval o( a com&romise agreement. 2$e la,'ers concerne! can en(orce t$eir rig$ts in t$e &ro&er co%rt in an a&&ro&riate &rocee!ing in accor!ance ,it$ t$e
///

-%les o( Co%rt b%t sai! rig$ts ma' not be %se! to &revent t$e a&&roval o( t$e com&romise agreement. 2$e a&&re$ension o( $erein co%nsel t$at it is im&ossible t$at t$e m%nici&alit' ,ill (ile a similar &etition consi!ering t$at t$e ma'or ,$o controls its legislative bo!' ,ill not ta+e t$e initiative is not onl' con9ect%ral b%t ,it$o%t (act%al basis. Contrar' to $is &retensions t$ere is &resentl' a mani(estation an! motion &en!ing ,it$ t$e trial co%rt (ile! b' t$e a(oresai! m%nici&al ma'or (or t$e ,it$!ra,al o( t$e ")atis(action o( 7%!gment" an! t$e "-elease an! W%itclaim" &revio%sl' (ile! in t$e case t$erein as earlier mentione!. Ramos v. CA Facts: On #&ril 18 1885 -amos =ereB Castillo an! t$e Bali%ag Mar+et Ken!ors #ssociation *nc. (ile! a &etition be(ore t$e co%rt a .%o (or t$e Declaration o( N%llit' o( M%nici&al Or!inances No. 81 ;187G< an! No. 7 ;1885< an! t$e contract o( lease over a commercial arca!e to be constr%cte! in t$e m%nici&alit' o( Bali%ag B%lacan. On #&ril /7 1885 !%ring t$e $earing on t$e &etitionersH motion (or t$e iss%ance o( &reliminar' in9%nction t$e =rovincial Fiscal a&&eare! as co%nsel (or res&on!ent M%nici&alit' o( Bali%ag ,$ic$ o&&ose! t$e &etition. 6$ere%&on a ,rit o( &reliminar' in9%nction ,as iss%e! b' t$e co%rt a .%o on Ma' 8 1885. Mean,$ile on Ma' 1 1885 t$e =rovincial Fiscal an! t$e =rovincial #ttorne' -egala!o (ile! an #ns,er on be$al( o( res&on!ent m%nici&alit'. #t t$e &reDtrial con(erence sc$e!%le! on Ma' /8 1885 #tt'. -omanillos a&&eare! mani(esting t$at $e ,as co%nsel (or res&on!ent m%nici&alit'. On t$e same !ate an! on 7%ne 1C 1885 res&ectivel' #tt'. -omanillos (ile! a motion to !issolve in9%nction an! a motion to a!mit an #men!e! #ns,er ,it$ motion to !ismiss. On 7%ne 18 1885 =rovincial #ttorne' -egala!o a&&eare! as collaborating co%nsel o( #tt'. -omanillos. 2$e =rovincial Fiscal !i! not a&&ear. *t ,as #tt'. -omanillos ,$o s%bmitte! t$e -e&l' toD &etitionersH O&&osition to res&on!entsH motion to !issolve in9%nction. *t ,as also #tt'. -omanillos ,$o s%bmitte! a ,ritten (ormal o((er o( evi!ence on 7%l' 17 1885 (or res&on!ent m%nici&alit'. D%ring t$e $earing on #%g%st 15 1885 &etitioners .%estione! t$e &ersonalit' o( #tt'. -omanillos to a&&ear as co%nsel (or t$e res&on!ent m%nici&alit' ,$ic$ o&&osition ,as reiterate! on #%g%st 1C 1885 an! ,as &%t in ,riting in &etitionersH motion o( #%g%st /5 1885 to !is.%ali(' #tt'. -omanillos (rom a&&earing as co%nsel (or res&on!ent m%nici&alit' an! to !eclare n%ll an! voi! t$e &rocee!ings &artici&ate! in an! %n!erta+en b' #tt'. -omanillos. Mean,$ile #tt'. -omanillos an! #tt'. -egala!o (ile! a 9oint motion !ate! #%g%st // 1885 stating among ot$ers t$at #tt'. -omanillos ,as ,it$!ra,ing as co%nsel (or res&on!ent m%nici&alit' an! t$at #tt'. -egala!o as $is collaborating co%nsel (or res&on!ent m%nici&alit' is a!o&ting t$e entire &rocee!ings &artici&ate! in?%n!erta+en b' #tt'. -omanillos. On )e&tember 18 1885 res&on!ent 7%!ge iss%e! t$e Or!er no, being assaile! ,$ic$ as alrea!' state! !enie! &etitionersH motion to !is.%ali(' #tt'. -omanillos as co%nsel (or res&on!ent m%nici&alit' an! to !eclare n%ll an! voi! t$e &rocee!ings &artici&ate! in b' #tt'. -omanillosA an! on t$e ot$er $an! grante! #tt'. -egala!oHs motion Hto (ormall' a!o&t t$e entire &rocee!ings incl%!ing t$e (ormal o((er o( evi!enceH. M- !enie!. C# !ismisse!. M- !enie!. *ss%es: 1. 6ON a m%nici&alit' ma' be re&resente! in a s%it against it b' a &rivate co%nsel. M%nici&alit' o( =ililla -iBal vs. C#: &rivate attorne's cannot re&resent a &rovince or m%nici&alit' in la,s%its. 2$e m%nici&alit'Hs a%t$orit' to em&lo' a &rivate la,'er is e4&ressl' limite! onl' to sit%ations ,$ere t$e &rovincial (iscal is !is.%ali(ie! to re&resent it. #lins%g v. -2C: 34ce&tions: t$e la, allo,s a &rivate co%nsel to be $ire! b' a m%nici&alit' onl' ,$en t$e m%nici&alit' is an a!verse &art' in a case involving t$e &rovincial government or anot$er m%nici&alit' or cit' ,it$in t$e &rovince. 2$is &rovision $as its a&&arent origin in t$e r%ling in De G%ia v. 2$e #%!itor General ,$ere t$e Co%rt $el! t$at t$e m%nici&alit'Hs a%t$orit' to em&lo' a &rivate attorne' is e4&ressl' limite! onl' to sit%ations ,$ere t$e &rovincial (iscal ,o%l! be !is.%ali(ie! to serve an! re&resent it. 6it$ )ec. 1G81 o( t$e ol! #!ministrative Co!e as legal basis t$e Co%rt t$erein cite! 3nri.%eB )r. v. GimeneB ,$ic$ en%merate! instances ,$en t$e &rovincial (iscal is !is.%ali(ie! to re&resent in co%rt a &artic%lar m%nici&alit'A i( an! ,$en original 9%ris!iction o( case involving t$e m%nici&alit' is veste! in t$e )%&reme Co%rt ,$en t$e m%nici&alit' is a &art' a!verse to t$e &rovincial government or to some ot$er m%nici&alit' in t$e same &rovince an! ,$en in a case involving t$e m%nici&alit' $e or $is ,i(e or
//1

c$il! is &ec%niaril' involve! as $eir legatee cre!itor or ot$er,ise. None o( t$e (oregoing e4ce&tions is &resent in t$is case. *t ma' be sai! t$at #tt'. -omanillos a&&eare! (or res&on!ent m%nici&alit' inasm%c$ as $e ,as alrea!' co%nsel o( Mristi Cor&oration ,$ic$ ,as s%e! ,it$ res&on!ent m%nici&alit' in t$is same case. 2$e or!er o( t$e trial co%rt !ate! )e&tember 18 1885 state! t$at #tt'. -omanillos "entere! $is a&&earance as collaborating co%nsel o( t$e &rovincial &rosec%tor an! t$e &rovincial attorne'." 2$is collaboration is contrar' to la, an! $ence s$o%l! not $ave been recogniBe! as legal. 2$e (act t$at t$e m%nici&al attorne' an! t$e (iscal are s%&&ose! to collaborate ,it$ a &rivate la, (irm !oes not legaliBe t$e latterHs re&resentation o( t$e m%nici&alit' o( Hagono' in Civil Case No. C58CDM. 6$ile a &rivate &rosec%tor is allo,e! in criminal cases an analogo%s arrangement is not allo,e! in civil cases ,$erein a m%nici&alit' is t$e &lainti((." litigant ,$om $e &%r&orts to re&resent. His a%t$orit' to a&&ear (or an! re&resent &etitioner in litigation not $aving been .%estione! in t$e lo,er co%rt it ,ill be &res%me! on a&&eal t$at co%nsel ,as &ro&erl' a%t$oriBe! to (ile t$e com&laint an! a&&ear (or $is client. 6ON t$e a!o&tion b' #tt'. -egala!o o( t$e &rocee!ings &artici&ate! in b' #tt'. -omanillos vali!ate s%c$ &rocee!ings. :3). *t !oes not a&&ear t$at t$e a!o&tion o( &rocee!ings &artici&ate! in or %n!erta+en b' #tt'. -omanillos ,$en $e ,as &rivate co%nselS s%c$ as t$e &rocee!ings on t$e motion to !issolve t$e in9%nction ,$erein &etitioners $a! even crossDe4amine! t$e ,itnesses &resente! b' #tt'. -omanillos in s%&&ort o( sai! motion an! $a! even starte! to &resent t$eir ,itnesses to s%stain t$eir ob9ection to t$e motion S ,o%l! $ave res%lte! in an' s%bstantial &re9%!ice to &etitionersH interest. 2o !eclare t$e sai! &rocee!ings n%ll an! voi! S not,it$stan!ing t$e (ormal a!o&tion t$ereo( b' #tt'. -egala!o as =rovincial #ttorne' o( B%lacan ,$o is a%t$oriBe! to re&resent res&on!ent m%nici&alit' o( Bali%ag in co%rt S an! to re.%ire trial ane, to cover t$e same s%b9ect matter to $ear t$e same ,itnesses an! to a!mit t$e same evi!ence a!!%ce! b' t$e same &arties cannot en$ance t$e &romotion o( 9%stice." #lt$o%g$ a m%nici&alit' ma' not $ire a &rivate la,'er to re&resent it in litigations in t$e interest o( s%bstantial 9%stice $o,ever ,e $ol! t$at a m%nici&alit' ma' a!o&t t$e ,or+ alrea!' &er(orme! in goo! (ait$ b' s%c$ &rivate la,'er ,$ic$ ,or+ is bene(icial to it ;1< &rovi!e! t$at no in9%stice is t$ereb' $ea&e! on t$e a!verse &art' an! ;/< &rovi!e! (%rt$er t$at no com&ensation in an' g%ise is &ai! t$ere(or b' sai! m%nici&alit' to t$e &rivate la,'er. @nless so e4&ressl' a!o&te! t$e &rivate la,'erHs ,or+ cannot bin! t$e m%nici&alit'. 6ON "7oint Motion" Nee! Not Com&l' ,it$ -%le 1C. # motion to ,it$!ra, t$e a&&earance o( an %na%t$oriBe! la,'er is a nonDa!versarial motion t$at nee! not com&l' ,it$ )ection 0 o( -%le 1C as to notice to t$e a!verse &art'. 2$e !is.%ali(ication o( #tt'. -omanillos ,as ,$at &etitioners ,ere reall' &ra'ing (or ,$en t$e' .%estione! $is a%t$orit' to a&&ear (or t$e m%nici&alit'. 2$e !is.%ali(ication ,as grante! t$ereb' serving t$e relie( &ra'e! (or b' &etitioners.
/.
/. 6ON t$e &etitioners ma' be $el! in esto&&els =etitioners cannot be $el! in esto&&el (or .%estioning t$e
legalit' o( t$e a&&earance o( #tt'. -omanillos not,it$stan!ing t$at t$e' .%estione! t$e ,itnesses o( res&on!ent m%nici&alit' !%ring t$e $earing o( its motion to !issolve t$e &reliminar' in9%nction. M%nici&alit' o( =ililla -iBal vs. Co%rt o( #&&eals $el! t$at t$e legalit' o( t$e re&resentation o( an %na%t$oriBe! co%nsel ma' be raise! at an' stage o( t$e &rocee!ings. 2$is Co%rt state! t$at: 2$e legalit' o( $is re&resentation can be .%estione! at an' stage o( t$e &rocee!ings. *n t$e cases $ereinbe(ore cite! t$e iss%e o( lac+ o( a%t$orit' o( &rivate co%nsel to re&resent a m%nici&alit' ,as onl' raise! (or t$e (irst time in t$e &rocee!ings (or t$e collection o( attorne'Hs (ees (or services ren!ere! in t$e &artic%lar case a(ter t$e !ecision in t$at case $a! become (inal an! e4ec%tor' an!?or $a! been !%l' e4ec%te!. 3lementar' (airness !ictates t$at &arties %na,are o( t$e %na%t$oriBe! re&resentation s$o%l! not be $el! in esto&&el 9%st beca%se t$e' !i! not .%estion on t$e s&ot t$e a%t$orit' o( t$e co%nsel (or t$e m%nici&alit'. 2$e r%le on a&&earances o( a la,'er is t$at %ntil t$e contrar' is clearl' s$o,n an attorne' is &res%me! to be acting %n!er a%t$orit' o( t$e
/.
//0

)%c$ being t$e case no "notice !irecte! to t$e &arties concerne! an! serve! at least 1 !a's be(ore t$e $earing t$ereo(" nee! be given &etitioners t$e .%estione! motion not being contentio%s. Besi!es ,$at &etitioners ,ere .%estioning as to lac+ o( a%t$orit' ,as reme!ie! b' t$e a!o&tion o( &rocee!ings b' an a%t$oriBe! co%nsel #tt'. -egala!o. 2$e action o( t$e trial co%rt allo,ing t$e motion o( res&on!ent m%nici&alit' e((ectivel' grante! &etitionersH motion to !is.%ali(' #tt'. -omanillos. *n =eo&le vs. Leviste ,e r%le! t$at: "6$ile it is tr%e t$at an' motion t$at !oes not com&l' ,it$ t$e re.%irements o( -%le 1C s$o%l! not be acce&te! (or (iling an! i( (ile! is not entitle! to 9%!icial cogniBance t$is Co%rt $as li+e,ise $el! t$at ,$ere a rigi! a&&lication o( t$e r%le ,ill res%lt in a mani(est (ail%re or miscarriage o( 9%stice tec$nicalities ma' be !isregar!e! in or!er to resolve t$e case. Litigations s$o%l! as m%c$ as &ossible be !eci!e! on t$e merits an! not on tec$nicalities. #s t$is Co%rt $el! in GalveB vs. Co%rt o( #&&eals ]an or!er o( t$e co%rt granting t$e motion to !ismiss !es&ite t$e absence o( a notice o( $earing or &roo( o( service t$ereo( is merel' an irreg%larit' in t$e &rocee!ings cannot !e&rive a com&etent co%rt o( 9%ris!iction over t$e Case."H -%les o( &roce!%re are b%t tools !esigne! to (acilitate t$e attainment o( 9%stice s%c$ t$at ,$en rigi! a&&lication o( t$e r%les ten! to (r%strate rat$er t$an &romote s%bstantial 9%stice t$is Co%rt is em&o,ere! to s%s&en! t$eir o&eration. (alalima v. Guingona Facts: )ometime in 1881 several a!ministrative com&laints against t$e &etitioners ,$o ,ere elective o((icials o( t$e =rovince o( #lba' ,ere (ile! ,it$ t$e O((ice o( t$e =resi!ent. #cting t$ereon t$e =resi!ent iss%e! #O 80 creating an #! Hoc Committee to investigate t$e c$arges an! to t$erea(ter s%bmit its (in!ings an! recommen!ations. 2$e #! Hoc committee ,as com&ose! o( @n!ersecretar' Kictor -. )%m%long o( t$e De&artment o( t$e *nterior an! Local Government ;D*LG< #ssistant 34ec%tive )ecretar' -enato C. Corona an! =resi!ential #ssistant #ngel K. )al!ivar. On /G #%g%st 1880 a(ter con!%cting $earings t$e #! Hoc Committee s%bmitte! its re&ort to t$e O((ice o( t$e =resi!ent. On 7 October 1880 t$e =resi!ent &rom%lgate! #O. 1C1 ,$ic$ mete! o%t s%s&ensions to t$e &etitioners. O= Case C0G8: Beca%se o( t$e re(%sal b' t$e N=C to &a' real &ro&ert' ta4es assesse! b' #lba' covering t$e &erio! (rom 11 7%ne 1880 %& to 15 Marc$ 1887 amo%nting to =/10 80C 180.7G t$e =rovince sol! at &%blic a%ction t$e &ro&erties o( N=C consisting o( geot$ermal &o,er &lants b%il!ings mac$iner' an! ot$er im&rovements locate! at 2i,i an! Daraga #lba'. 2$e =rovince ,as t$e sole an! ,inning bi!!er at t$e a%ction sale. N=C (aile! to re!eem its &ro&erties. *t later (ile! a &etition ,it$ t$e )%&reme Co%rt .%estioning t$e vali!it' o( t$e a%ction sale con!%cte! b' t$e =rovince. N=C claims inter alia t$at its &ro&erties are not s%b9ect to real &ro&ert' ta4. On 17 Ma' 1888 t$e =rovince t$ro%g$ #tt'. -om%lo -ica(ort t$e legal o((icer o( t$e =rovince (ile! itA comment on t$e N=C &etition ,it$ t$e )%&reme Co%rt. On / 7%ne 1888 t$e #lba' )angg%niang =anlala,igan a!o&te! -esol%tion No. 1/8D88 a%t$oriBing res&on!ent Governor to engage t$e services o( a ManilaDbase! la, (irm to $an!le t$e case against N=C. On /C #%g%st 1888 #tt'. 7es%s -. Cornago entere! $is a&&earance ,it$ t$e )%&reme Co%rt as collaborating co%nsel (or t$e =rovince in G.-. No. 87078. 2$e entr' o( a&&earance o( #tt'. Cornago bore t$e con(ormit' o( res&on!ent Governor. On 10 November 1888 #tt'. #ntonio 7ose F. Cortes o( t$e Cortes P -e'na La, Firm sent res&on!ent Governor a letter in(orming $im t$at #tt'. 7es%s -. Cornago as collaborating co%nsel (or t$e =rovince $as (ile! a memoran!%m ,it$ t$e )%&reme Co%rt s%ggesting t$at a retainer agreement be signe! bet,een t$e =rovince on t$e one $an! an! #tt'. Cornago an! Cortes P -e'na La, Firm. On 8 7an%ar' 1885 t$e #lba' )angg%niang =anlala,igan &asse! -esol%tion No. 51D85 a%t$oriBing res&on!ent Governor to sign an! con(irm t$e retainer contract ,it$ t$e Cortes P -e'na La, Firm. )alalima signe! t$e retainer agreement. On 0 7%ne 1885 t$e )%&reme Co%rt iss%e! a !ecision !ismissing t$e N=C &etition an! %&$ol!ing t$e vali!it' o( t$e a%ction sale con!%cte! b' t$e &rovince to ans,er (or N=CHs ta4 liabilities. =a'ments amo%nting to =7 185 015.11 ,ere ma!e b' t$e =rovince to #tt'. #ntonio 7ose Cortes an! #tt'. 7es%s -. Cornago. *ss%e: 6ON res&on!ents $ave inc%rre! a!ministrative liabilit' in entering into t$e retainer agreement ,it$ #tt'. Cornago an! t$e Cortes P -e'na La, Firm an! in ma+ing &a'ments &%rs%ant to sai! agreement (or &%r&oses o( t$e case (ile! b' N=C ,it$ t$e )%&reme Co%rt against t$e &rovince. :3).
//C
Mabelle O. Nebres | Local Governments Case Digests )ec. 081 o( t$e LGC ;-#. No. 71G5< re.%ires t$e
a&&ointment o( a legal o((icer (or t$e &rovince ,$ose (%nctions incl%!e t$e (ollo,ing: -e&resent t$e local government %nit in all civil actions an! s&ecial &rocee!ings ,$erein t$e local government %nit or an' o((icial t$ereo( in $is o((icial ca&acit' is a &art'A =rovi!e! 2$at in actions or &rocee!ing ,$ere a com&onent cit' or m%nici&alit' is a &art' a!verse to t$e &rovincial government or to anot$er com&onent cit' or m%nici&alit' a s&ecial legal o((icer ma' be em&lo'e! to re&resent t$e a!verse &art'. M%nici&alit' o( Boca%e et al. v. Manoto+: LG@s cannot be re&resente! b' &rivate la,'ers an! it is solel' t$e =rovincial Fiscal ,$o can rig$t(%ll' re&resent t$em. @n!er t$e la, t$e =rovincial Fiscal o( B%lacan an! $is assistants are c$arge! ,it$ t$e !%t' to re&resent t$e &rovince an! an' m%nici&alit' t$ereo( in all civil actions. 2$is r%ling a&&lies s.%arel' to t$e case at $an! beca%se )ec. 081 o( t$e LGC is base! on )ec. 1G81 o( t$e -evise! #!ministrative Co!e ,$ic$ ,as t$e s%b9ect o( inter&retation in t$e abovecite! case. *n $iring &rivate la,'ers to re&resent t$e =rovince o( #lba' res&on!ents e4cee!e! t$eir a%t$orit' an! violate! t$e above.%ote! section o( t$e LGC an! t$e !octrine lai! !o,n b' t$e )%&reme Co%rt. Moreover t$e entire transaction ,as atten!e! b' irreg%larities. First t$e !isb%rsements to t$e la,'ers amo%nting to =7 185 015.11 ,ere !isallo,e! b' t$e =rovincial #%!itor on t$e gro%n! t$at t$ese ,ere ma!e ,it$o%t t$e &rior ,ritten con(ormit' o( t$e )olicitor General an! t$e ,ritten conc%rrence o( t$e Commission on #%!it ;CO#< as re.%ire! b' CO# Circ%lar No. 8GD/CC !ate! / #&ril 188G. 2$e res&on!ents attem&te! to !is&%te t$is (in!ing b' &resenting t$e )olicitor GeneralHs con(ormit' !ate! 1C 7%l' 1881. 2$is con(ormit' ,as $o,ever obtaine! a(ter t$e !isb%rsements ,ere alrea!' ma!e in 1885 an! 188/. 6$at is re.%ire! b' CO# Circ%lar No. 8CD/CC is a &rior ,ritten con(ormit' an! ac.%iescence o( t$e )olicitor General. #not$er irreg%larit' in t$e transaction concerns t$e la,'ers. -esol%tion No. 51D85 a%t$oriBe! t$e res&on!ent Governor to sign an! con(irm a retainer contract (or legal services ,it$ t$e Cortes P -e'na La, Firm at /5/ 3. -o!rig%eB )r. Blv!. W%eBon Cit'. 2$e retainer contract signe! b' res&on!ent Governor ,as $o,ever not onl' ,it$ t$e Cortes P -e'na La, Firm b%t also ,it$ #tt'. 7es%s -. Cornago o( 7amecca B%il!ing /85 2omas Morato #ven%e W%eBon Cit'. *n entering into a retainer agreement not onl' ,it$ t$e Cortes P -e'na La, Firm b%t also ,it$ #tt'. 7ose -. Cornago res&on!ent Governor e4cee!e! $is a%t$orit' %n!er -esol%tion No. 51D85. Com&licating (%rt$er t$e ,eb o( !ece&tion s%rro%n!ing t$e transaction is t$e (act t$at it ,as onl' #tt'. Cornago ,$o a&&eare! as collaborating co%nsel o( recor! o( t$e =rovince in t$e )%&reme Co%rt case ;G -. No. 87078<. 3ven t$e )olicitor General in $is letter to res&on!ent Governor !ate! 1C 7%l' 1881 note! t$at t$e =rovince is re&resente! in t$e )%&reme Co%rt b' #tt's. -ica(ort Cornago an! Glenn Mana$an b%t not b' t$e Cortes P -e'na La, Firm. F%rt$ermore t$e memoran!%m ,it$ t$e )%&reme Co%rt (ile! (or t$e =rovince ,as signe! b' #tt'. Cornago an! not b' t$e Cortes P -e'na La, Firm. Conse.%entl' t$e Cortes P -e'na La, Firm ,as not co%nsel o( recor! o( t$e =rovince in G.-. No. 87078. #n! 'et si4 o( t$e ten c$ec+s &ai! b' t$e =rovince an! amo%nting to more t$an =1.G million ,ere iss%e! in (avor o( t$e Cortes P -e'na La, Firm t$ro%g$ #tt'. #ntonio 7ose Cortes. *n ot$er ,or!s res&on!ents !isb%rse! mone' to t$e Cortes P -e'na La, Firm alt$o%g$ t$e latter !i! not a&&ear as co%nsel (or t$e =rovince in t$e )%&reme Co%rt in G.-. No. 87078. Finall' t$e attorne'Hs (ees agree! %&on b' res&on!ent )alalima an! con(irme! b' t$e ot$er res&on!ents are not onl' %nreasonable b%t also %nconscionable. 2$e contingent (ee o( 18Y o( t$e "=/10 million" claim o( t$e =rovince against N=C amo%nts to =18.C million. 2$e ,or! "%nconscionable" as a&&lie! to attorne'Hs (ee "means not$ing more t$an t$at t$e (ee contracte! (or stan!ing alone an! %ne4&laine! ,o%l! be s%((icient to s$o, t$at an %n(air a!vantage $a! been ta+en o( t$e client or t$at a legal (ra%! $a! been ta+en o( t$e client or t$at a legal (ra%! $a! been &er&etrate! on $im." 2$e =rovince $as a legal o((icer #tt'. -ica(ort ,$o $a! alrea!' (ile! a comment on N=CHs &etition against t$e =rovince. 2$e comment (ile! b' #tt'. -ica(ort alrea!' covers t$e basic iss%es raise! in t$e &etition. 6$en #tt'. Cornago
//G

(ile! an a&&earance an! s%bse.%entl' a memoran!%m (or t$e =rovince t$e &etition ,as alrea!' been given !%e co%rse b' t$e )%&reme Co%rt an! t$e onl' &lea!ing to be (ile! b' t$e &arties be(ore t$e Co%rt ,o%l! iss%e its !ecision ,as a memoran!%m. )%rel' one memoran!%m co%l! not be ,ort$ =18.C million. F%rt$ermore t$e &ro(essional c$aracter an! social stan!ing o( #tt'. Cornago are not s%c$ as ,o%l! merit a =18.C million (ee (or t$e legal services ren!ere! (or t$e =rovince. D%ring t$e $earing res&on!ent Governor a!mitte! t$at $e $a! $ire! #tt'. Cornago beca%se t$e' ,ere sc$oolmates at )an Be!a College. *t is evi!ent t$at res&on!ent Governor $ire! #tt'. Cornago not on t$e basis o( $is com&etenc' an! stan!ing in t$e legal comm%nit' b%t &%rel' (or &ersonal reasons. Li+e,ise t$e stan!ing o( t$e Cortes P -e'na La, Firm is not s%c$ as ,o%l! merit =18.C million (or one memoran!%m ,$ic$ in t$is case it $a! not even (ile! beca%se it ,as not t$e co%nsel o( recor!. Hence consi!ering t$e labor an! time involve! t$e s+ill an! e4&erience calle! (or in t$e &er(ormance o( t$e services an! t$e &ro(essional c$aracter an! social stan!ing o( t$e la,'ers t$e attorne'Hs (ee o( =18.C million is %nconscionable. B' allo,ing s%c$ scan!alo%sl' e4orbitant attorne'Hs (ees ,$ic$ is &atentl' !isa!vantageo%s to t$e government res&on!ents betra'e! a &ersonal bias to t$e la,'ers involve! an! committe! ab%se o( a%t$orit'. *ss%es: 1. 6ON t$e O= acte! ,it$ grave ab%se o( !iscretion in s%s&en!ing &etitioners (or &erio!s ranging (rom 1/D/5 mont$s. )ec. GG;b< 2$e &enalt' o( s%s&ension s$all not e4cee! t$e %ne4&ire! term o( t$e res&on!ent or a &erio! o( si4 ;G< mont$s (or ever' a!ministrative o((ense nor s$all sai! &enalt' be a bar to t$e can!i!ac' o( t$e res&on!ent so s%s&en!e! as long as $e meet t$e .%ali(ications (or t$e o((ice. 2$is &rovision sets t$e limits to t$e &enalt' o( s%s&ension. *t s$o%l! not e4cee! si4 mont$s or t$e %ne4&ire! &ortion o( t$e term o( o((ice o( t$e res&on!ent (or ever' a!ministrative o((ense. #n a!ministrative o((ense means ever' act or con!%ct or omission ,$ic$ amo%nts to or constit%tes ever' o( t$e gro%n!s or !isci&linar' action.
2$e o((enses (or ,$ic$ s%s&ension ma' be im&ose! are

en%merate! in )ection G5 o( t$e Co!e ,$ic$ rea!s: )ec. G5. #n elective local o((icial ma' be !isci&line! s%s&en!e! or remove! (rom o((ice on an' o( t$e (ollo,ing gro%n!s: ;a< Dislo'alt' to t$e -e&%blic o( t$e =$ili&&inesA ;b< C%l&able violation o( t$e Constit%tionA ;c< Dis$onest' o&&ression miscon!%ct in o((ice gross negligence or !ereliction o( !%t'A ;!< Commission o( an' o((ense involving moral t%r&it%!e or an o((ense &%nis$able b' at Least &rision ma'orA ;e< #b%se o( a%t$orit'A ;(< @na%t$oriBe! absence (or (i(teen ;1C< consec%tive ,or+ing !a's e4ce&t in t$e case o( members o( t$e sangg%niang &anlala,igan sangg%niang &anl%ngso! sangg%niang ba'an an! sangg%niang baranga'A ;g< #c.%isition (or or ac.%isition o( (oreign citiBens$i& or resi!ence or t$e stat%s o( an immigrant o( anot$er co%ntr'A an! ;$< )%c$ ot$er gro%n!s as ma' be &rovi!e! in t$is Co!e an! ot$er la,s. #n elective local o((icial ma' be remove! (rom o((ice on t$e gro%n!s en%merate! above b' or!er o( t$e &ro&er co%rt. #ss%ming t$en t$at t$e (in!ings an! concl%sions o( t$e O((ice o( t$e =resi!ent in eac$ o( t$e s%b9ect (o%r a!ministrative cases are correct it committe! no grave ab%se o( !iscretion in im&osing t$e &enalt' o( s%s&ension alt$o%g$ t$e aggregate t$ereo( e4cee!e! si4 mont$s an! t$e %ne4&ire! &ortion o( t$e &etitionersH term o( o((ice. 2$e (act remains t$at t$e s%s&ension im&ose! (or eac$ a!ministrative o((ense !i! not e4cee! si4 mont$s an! t$ere ,as an e4&ress &rovision t$at t$e s%ccessive service o( t$e s%s&ension s$o%l! not e4cee! t$e %ne4&ire! &ortion o( t$e term o( o((ice o( t$e &etitioners. 2$eir term o( o((ice e4&ire! at noon o( 15 7%ne 188C. #n! t$is Co%rt is not &re&are! to r%le t$at t$e s%s&ension to t$e &etitionersH removal o((ice. /. 6ON t$e O= committe! grave ab%se o( !iscretion in s%s&en!ing )alalima ,$o ,as reelecte! on 11 Ma' 188/ (or an allege! a!ministrative o((ense committe! !%ring $is (irst termA an! in s%s&en!ing in t$e ot$er &etitioners some o( ,$om ,ere electe! an! ot$ers reelecte! on 11 Ma' 188/ (or an allege! a!ministrative o((ense committe! in 1888 6e agree ,it$ t$e &etitioners t$at Governor )alalima co%l! no longer be $el! a!ministrativel' liable in C.=. Case No. C0C5 in connection ,it$ t$e negotiate! contract entere! into on G Marc$ 188/ ,it$ -:@ Constr%ction (or a!!itional
//7

re$abilitation ,or+ at t$e 2abaco =%blic Mar+et. Nor co%l! t$e &etitioners be $el! a!ministrativel' liable in O.=. Case No. C0G8 (or t$e e4ec%tion in November 1888 o( t$e retainer contract ,it$ #tt'. 7es%s Cornago an! t$e CorteHs an! -e'na La, Firm. 2$is is so beca%se &%blic o((icials cannot be s%b9ect to !isci&linar' action (or a!ministrative miscon!%ct committe! !%ring a &rior term as $el! in =asc%al vs. =rovincial Boar! o( N%eva 3ci9a 17 an! #g%inal!o vs. )antos. 18 *n =asc%al t$is Co%rt r%le!: 6e no, come to one main iss%e o( t$e controvers' S t$e legalit' o( !isci&lining an elective m%nici&al o((icial (or a ,rong(%l act committe! b' $im !%ring $is imme!iatel' &rece!ing term o( o((ice. *n t$e absence o( an' &rece!ent in t$is 9%ris!iction ,e $ave resorte! to #merican a%t$orities. 6e (o%n! t$at cases on t$e matter are con(licting !%e in &art &robabl' to !i((erences in stat%tes an! constit%tional &rovisions an! also in &art to a !ivergence o( vie,s ,it$ res&ect to t$e .%estion o( ,$et$er t$e s%bse.%ent election or a&&ointment con!ones t$e &rior miscon!%ct. 2$e ,eig$t o( a%t$orit' $o,ever seems to incline to t$e r%le !en'ing t$e rig$t to remove one (rom o((ice beca%se o( miscon!%ct !%ring a &rior term to ,$ic$ ,e (%ll' s%bscribe. O((enses committe! or acts !one !%ring &revio%s term are generall' $el! not to (%rnis$ ca%se (or removal an! t$is is es&eciall' tr%e ,$ere t$e constit%tion &rovi!es t$at t$e &enalt' in &rocee!ings (or removal s$all not e4ten! be'on! t$e removal (rom o((ice an! !is.%ali(ication (rom $ol!ing o((ice (or t$e term (or ,$ic$ t$e o((ice ,as electe! or a&&ointe!. ;G7 C.7.). &. /08 citing -ice vs. )tate 1G1 ).6. /!. 051A Montgomer' vs. No,ell 05 ) 6. /! 018A =eo&le e4 rel. Bags$a, vs. 2$om&son 115 =. /! /17A Boar! o( ComHrs o( Ming(is$er Co%nt' vs. )$%tler /81 =. ///A )tate vs. Bla+e /85 =. 188A *n re F%!%la 107 #. G7A )tate vs. 6ar! 01 ).K. /!. /17<. 2$e %n!erl'ing t$eor' is t$at eac$ term is se&arate (rom ot$er terms an! t$at t$e reelection to o((ice o&erates as a con!onation o( t$e o((icerHs &revio%s miscon!%ct to t$e e4tent o( c%tting o(( t$e rig$t to remove $im t$ere(or ;01 #m. 7%r. &. 0C citing #tt'. Gen. vs. Hast' 180 #la. 1/1 G1 )o. CC8 C5 L.-.#.. ;N)< CC1. #s $el! on Conant vs. Brogan ;1887< G N.:.).-. 11/ cite! in 17 #.*.-. /81 G1 )o. CC8 C5 L-# ;N)< CC1 S2$e Co%rt s$o%l! never remove a &%blic o((icer (or acts !one &rior to $is &resent term o( o((ice. 2o !o ot$er,ise ,o%l! be to !e&rive t$e &eo&le o( t$eir rig$t to o((ice it m%st be ass%me! t$at t$e' !i! t$is ,it$ +no,le!ge o( $is li(e an! c$aracter an! t$at t$e' !isregar!e! or (orgave $is (a%lts or miscon!%ct i( $e $a! been g%ilt' o( an'. *t is not (or t$e co%rt b' reason o( s%c$ (a%lts or miscon!%ct to &racticall' overr%le t$e ,ill o( t$e &eo&le. 2$is Co%rt reiterate! t$is r%le in #g%inal!o an! e4&licitl' state! t$erein: Clearl' t$en t$e r%le is t$at a &%blic o((icial can not be remove! (or a!ministrative miscon!%ct committe! !%ring a &rior term since $is reDelection to o((ice o&erates a con!onation o( t$e o((icerHs &revio%s miscon!%ct to t$e e4tent o( c%tting o(( t$e rig$t to remove $im t$ere(or. 2$e (oregoing r%le $o,ever (in!s no a&&lication to criminal cases &en!ing against &etitioners (or acts $e ma' $ave committe! !%ring t$e (aile! co%&. Ho,ever t$e O((ice o( t$e )olicitor General maintains t$at #g%inal!o !oes not a&&l' beca%se t$e case against t$e o((icial t$erein ,as alrea!' &en!ing ,$en $e (ile! $is certi(icate o( can!i!ac' (or $is reelection bi!. *t is o( t$e vie, t$at an o((icialHs reelection ren!ers moot an! aca!emic an a!ministrative com&laint against $im (or acts !one !%ring $is &revio%s term onl' i( t$e com&laint ,as (ile! be(ore $is reelection. 2$e (ine !istinction !oes not im&ress %s. 2$e r%le ma+es no !istinction. #s a matter o( (act in =asc%al t$e a!ministrative com&laint against =asc%al (or acts committe! !%ring $is (irst term as Ma'or o( )an 7ose N%eva 3ci9a ,as (ile! onl' a 'ear a(ter $e ,as reelecte!. 2$e r%le a!o&te! in =asc%al .%ali(ie! in #g%inal!o inso(ar as criminal cases are concerne! is still a goo! la,. )%c$ a r%le is not onl' (o%n!e! on t$e t$eor' t$at an o((icialHs reelection e4&resses t$e sovereign ,ill o( t$e electorate to (orgive or con!one an' act or omission constit%ting a gro%n! (or a!ministrative !isci&line ,$ic$ ,as committe! !%ring $is &revio%s term. 6e ma' a!! t$at so%n! &%blic &olic' !ictates it. 2o r%le ot$er,ise ,o%l! o&en t$e (loo!gates to e4acerbating en!less &artisan contests bet,een t$e reelecte! o((icial an! $is &olitical enemies ,$o ma' not sto& to $o%n! t$e (ormer !%ring $is ne, term ,it$ a!ministrative cases (or acts allege! to $ave been committe! !%ring $is &revio%s term. His secon! term ma' t$%s be !evote! to !e(en!ing $imsel( in t$e sai! cases to t$e !etriment o( &%blic service. 2$is !octrine o( (orgiveness or con!onation cannot $o,ever a&&l' to criminal acts
//8

,$ic$ t$e reelecte! o((icial ma' $ave committe! !%ring $is &revio%s term. 6e t$%s r%le t$at an' a!ministrative liabilit' ,$ic$ &etitioner )alalima mig$t $ave inc%rre! in t$e e4ec%tion o( t$e retainer contract in O.=. Case No. C0G8 an! t$e inci!ents relate! t$ere,it$ an! in t$e e4ec%tion on Marc$ 188/ o( a contract (or a!!itional re&air an! re$abilitation ,or+s (or t$e 2abaco =%blic Mar+et in O.=. Case No. C0C5 are !eeme! e4ting%is$e! b' $is reelection in t$e 11 Ma' 188/ s'nc$roniBe! elections. )o are t$e liabilities i( an' o( &etitioner members o( t$e )angg%niang =anlala,igan ng #lba' ,$o signe! -esol%tion No. 1/8 a%t$oriBing &etitioner )alalima to enter into t$e retainer contract in .%estion an! ,$o ,ere reelecte! in t$e 188/ elections. 2$is is $o,ever ,it$o%t &re9%!ice to t$e instit%tion o( a&&ro&riate civil an! criminal cases as ma' be ,arrante! b' t$e atten!ant circ%mstances. #s to &etitioners Kictoria Marcellana -e'eg Osia an! Cabre!o ,$o became members o( t$e )angg%niang =anlala,igan onl' a(ter t$eir election in 188/ t$e' co%l! not be$el! a!ministrativel' liable in O.=. case No. C0G8 (or t$e' $a! not$ing to !o ,it$ t$e sai! resol%tion ,$ic$ ,as a!o&te! in #&ril 1888 'et.
//8

electe! Cit' Ma'or o( *loilo Cit' on vario%s c$arges s%c$ as ab%se o( a%t$orit' o&&ression grave miscon!%ct an! ot$ers. *n t$e co%rse o( t$e $earing o( t$e a!ministrative cases )ecretar' )antos iss%e! against GanBon 1 se&arate or!ers o( &reventive s%s&ension eac$ o( t$e or!ers to last (or a G5D!a' &erio!. =etitioner assaile! t$e vali!it' o( t$e sai! or!ers b' (iling ,it$ t$e Co%rt o( #&&eals / se&arate &etitions (or &ro$ibition. On 7 )e&tember 1888 an! C 7%l' 1885 t$e a&&ellate co%rt ren!ere! a !ecision !ismissing t$e &etitions (or lac+ o( merit. Hence GanBon (ile! ,it$ t$is Co%rt / se&arate &etitions assailing t$e !ecision. On /G 7%ne 1885 ,e iss%e! a 2-O barring t$e res&on!ent )ecretar' (rom im&lementing t$e s%s&ension or!ers an! restraining t$e en(orcement o( t$e C#>s / !ecisions. Ho,ever it a&&ears t$at even be(ore t$e &rom%lgation on C #%g%st 1881 o( t$e main !ecision res&on!ent )ecretar' )antos $a! iss%e! on 1 7%l' 1881 against &etitioner GanBon anot$er or!er o( &reventive s%s&ension in connection ,it$ an #!ministrative Case (ile! b' 7o&son. On G 7%l' 1881 GanBon (ile! $is "e4tremel' %rgent motion" ;,it$ s%&&lemental motions later (ile!< .%estioning t$e vali!it' o( t$e sai! last mentione! s%s&ension or!er. 2$is Co%rt iss%e! a resol%tion !ate! 8 7%l' 1881 re.%iring res&on!ents to comment on &etitionerHs %rgent motion. #(ter t$e main !ecision in t$e &resent &etitions ,as ren!ere! b' t$e Co%rt on C #%g%st 1881 res&on!ents (ile! motions !ate! 8 an! /8 #%g%st 1881 alleging t$erein t$at t$e iss%es raise! in &etitionerHs motion ;G 7%l' 1881< ,ere ren!ere! moot an! aca!emic b' t$e sai! !ecision an! see+ing clari(ication on ,$et$er it ,as still necessar' to com&l' ,it$ t$is Co%rtHs resol%tions re.%iring res&on!ents to (ile comment on &etitionerHs sai! motion o( G 7%l' 1881. Mean,$ile on /8 #%g%st 1881 res&on!ent )antos iss%e! a memoran!%m a!!resse! to &etitioner GanBon in connection ,it$ t$e C #%g%st 1881 main !ecision stating t$erein t$at t$e t$ir! or!er o( &reventive s%s&ension iss%e! against &etitioner on 1 Ma' 1885 s$all be !eeme! in (orce an! e((ect. On 15 #%g%st 1881 &etitioner GanBon (ile! ,it$ t$e C# a &etition (or man!am%s against res&on!ents. On t$e same !a' &etitioner (ile! in t$ese &etitions $is "mani(estation an! com&liance " alleging t$at $e $a! alrea!' (%ll' serve! t$e s%s&ension or!ers iss%e! against $im in com&liance ,it$ t$e main !ecision o( C #%g%st 1881 an! t$at $e s$o%l! be allo,e! to reDass%me $is o((ice starting 2 (eptember 0DD0. Mean,$ile in reaction to t$e memoran!%m !ate! /8 #%g%st 1881 iss%e! b' res&on!ent )antos &etitioner (ile! a motion &ra'ing (or t$e iss%ance o( a 2-O ,$ic$ motion ,as grante! b' t$e Co%rt o(
Ganzon v. CA /August 0DD0- supra- see p. D1 Ganzon v. CA /,ovember 0DD01 Facts: )ometime in 1888 a series o( 15 a!ministrative com&laints ,ere (ile! b' vario%s cit' o((icials against &etitioner GanBon t$e
/15

#&&eals. On 0 )e&tember 1881 res&on!ents (ile! ,it$ t$is Co%rt a motion as+ing (or t$e iss%ance o( a restraining or!er a!!resse! to t$e C# an! against t$e 2-O. Granting res&on!entsH motion t$is Co%rt on C )e&tember 1881 iss%e! a tem&orar' restraining or!er !irecting t$e C# to cease an! !esist (rom im&lementing t$e 2-O it $a! iss%e! !ate! 1 )e&tember 1881 imme!iatel' s%s&en!ing t$e im&lementation o( t$e or!er o( t$e )ecretar' o( *nterior an! Local Government !ate! /8 #%g%st 1881. On 8 )e&tember 1881 &etitioner GanBon (ile! a motion to !issolve t$is Co%rtHs restraining or!er !ate! C )e&tember 1881. 2$e recor!s s$o, t$at &etitioner GanBon to t$is !ate remains s%s&en!e! (rom o((ice ;as t$e electe! Ma'or o( *loilo Cit'< an! since t$e or!er o( &reventive s%s&ension !ate! 1 7%l' 1881 ;t$e (o%rt$ s%s&ension or!er 1 < ,as iss%e! against $im b' res&on!ent )ecretar'A in ot$er ,or!s $e $as been serving t$e sai! (o%rt$ s%s&ension or!er ,$ic$ is to e4&ire a(ter a &erio! o( G5 !a's or on 0 )e&tember 1881. First s%s&ension: 11 #%g%st 1888 (%ll' serve!. )econ!: 11 October 1888 not serve! beca%se its en(orcement ,as restraine! b' an or!er o( t$e -2C %&on &etition o( &etitioner $imsel(. 2$ir!: 1 Ma' 1885 t$e main !ecision states t$at &etitioner is allo,e! to serve t$e !%ration o( sai! t$ir! s%s&ension or!er. *t ,o%l! seem t$ere(ore t$at a(ter &etitioner $as serve! in (%ll t$e t$ir! s%s&ension or!er as !ecree! in t$e main !ecision $e can t$en ret%rn to $is o((icial !%ties as *loilo Cit' Ma'or. Fo%rt$: 1 7%l' 1881 iss%e! even be(ore t$e main !ecision o( C #%g%st 1881 ,as &rom%lgate!. ;2$e recor!s s$o, $o,ever t$at &etitioner $as in (act (%ll' serve! t$e (o%rt$ s%s&ension or!er as a!mitte! b' res&on!ents no less. 2$is ,ill be !isc%sse! s$ortl'A b%t an' iss%e on its vali!it' is no, moot an! aca!emic. Besi!es it is clear t$at t$is (o%rt$ s%s&ension or!er is not one o( t$e t$ree or!ers covere! b' an! s%b9ect o( t$e main !ecision<. 2$ir!: Ma' 0 1885 Ma' 18 1885 )C: 7%ne 8 1885 7%ne /G 1885 recor!s s$o, t$at $e ,as t$en in o((ice !isc$arging t$e (%nctions o( t$e Ma'or o( *loilo Cit'. Hence 0G !a's still remain to be serve! as !ecree! b' t$e main !ecision. *( ,e (ollo, t$e man!ate o( s%c$ main !ecision ,$ic$ or!aine! t$at t$e t$ir! or!er be serve! an! t$at t$e tem&orar' restraining or!er 1G against it be li(te! it ,o%l! (ollo, t$at t$e remaining 0G !a's s$o%l! be serve! starting C #%g%st 1881 ;!ate o( &rom%lgation o( main !ecision< %ntil (%ll' serve!. #not$er ,a' to serve t$e 0G !a's ,o%l! be to begin serving it onl' on 0 )e&tember 1881 ;t$e !a' a(ter 1 )e&tember 1881 ,$ic$ ,as t$e last !a' o( service (or t$e (o%rt$ s%s&ension or!er< or %ntil /5 October 1881 ;t$e 0Gt$ !a' (rom 0 )e&tember 1885<. Fo%rt$: 7%l' C 1881 )e&tember 1 1881 Ho,ever ,e ta+e note o( t$e (act t$at &etitioner $as alrea!' (%ll' serve! t$e G5D!a' (o%rt$ or!er o( &reventive s%s&ension ,$ic$ starte! C 7%l' 1881 ;t$at is even be(ore t$e main !ecision ,as ren!ere!< an! en!e! on 1 )e&tember 1881. =etitioner raises t$e iss%e o( ,$et$er $e co%l! or s$o%l! be allo,e! to serve t$e t$ir! an! t$e (o%rt$ or!ers "sim%ltaneo%sl'". *( ,e allo, $is s%bmission an! acce&t "sim%ltaneo%s service" it ,o%l! mean t$e (ollo,ing: t$at (rom C #%g%st 1881 ;t$e !ate t$e 2-O iss%e! b' t$is Co%rt ,as li(te!< %& to 1 )e&tember 1881 ;t$e last !a' (or serving t$e (o%rt$ or!er< t,ent'Dnine ;/8< !a's $ave ela&se!A t$at t$ese t,ent'Dnine ;/8< !a's ,$ic$ (orm &art o( $is service (or t$e (o%rt$ or!er can be also cre!ite! to $is (avor b' treating sai! t,ent'Dnine ;/8< !a's as (orming &art o( $is service o( t$e t$ir! or!erA i( t$is ,ere so $e ,o%l! nee! to serve onl' seventeen ;17< !a's more to com&lete t$e service o( t$e t$ir! or!erA sai! seventeen ;17< !a's (rom 1 )e&tember 1881 ,ill e4&ire on /5 )e&tember 1881 ,$ic$ ,o%l! be t$e last !a' (or serving t$e t$ir! s%s&ension or!er. *ss%es: 1. 6ON &etitioner can be allo,e! t$e bene(it o( sim%ltaneo%s service o( &reventive s%s&ensions. *( sim%ltaneo%s service o( t,o ;/< s%s&ension or!ers is allo,e! t$is ,o%l! ,or+ in (avor o( t$e &etitioner ;an elective local o((icial< as t$e balance o( $is t$ir! &reventive s%s&ension ,o%l! in e((ect be re!%ce! (rom 0G !a's to 17 !a's. *n t$e main !ecision noting t$at s%ccessive s%s&ensions $ave been in(licte! on Ma'or GanBon ,e state! t$at ,$at "is intrig%ing is t$at res&on!ent )ecretar' $as been crac+ing !o,n so to s&ea+ on t$e Ma'or &iecemeal S a&&arentl' to &in $im !o,n ten times t$e &ain ,$en $e t$e res&on!ent )ecretar' co%l! $ave &%rs%e! a consoli!ate! e((ort." 17 )%rel' allo,ing &etitioner to serve sim%ltaneo%sl' t$e overla&&ing t$ir! an! (o%rt$ s%s&ensions ,ill (avor $im ;an! &res%mabl' t$e local constit%enc'< an! certainl' lessen i( not o((set t$e $ars$ e((ects o( ,$atever
/11

motive ma' be be$in! t$e intrig%ing action o( t$e res&on!ent )ecretar' in iss%ing t$ose s%ccessive s%s&ension or!ers. LGC: )ec. G1. =reventive )%s&ension b< . . . t$at an' single &reventive s%s&ension o( local elective o((icial s$all not e4ten! be'on! si4t' ;G5< !a's: =rovi!e! (%rt$er t$at in t$e event t$at several a!ministrative cases are (ile! against an elective o((icial $e cannot be &reventivel' s%s&en!e! (or more t$an ninet' ;85< !a's ,it$in a single 'ear on t$e same gro%n! or gro%n!s e4isting an! +no,n at t$e time o( t$e (irst s%s&ension. )ince ,e can allo, as ,e $ere allo, %n!er t$e biBarre circ%mstances o( t$is case &etitioner to serve t$e t$ir! an! (o%rt$ or!ers sim%ltaneo%sl' ;inso(ar as t$e' overla&< t$is means t$at as e4&laine! earlier &etitioner s$all serve onl' 17 !a's more ;not 0G !a's< to com&lete t$e service o( t$e t$ir! or!er t$at is starting (rom 1 )e&tember 1881 an! en!ing on /5 )e&tember 1881. Hence as o( t$is latter !ate &etitioner $as com&lie! ,it$ t$e man!ate o( t$e main !ecision (or $e $as alrea!' (%ll' serve! t$e t$ir! &reventive s%s&ension ,$ic$ en!e! on /5 )e&tember 1881. 6ON &etitioner m%st also serve $is secon! s%s&ension. *( ,e (ollo, t$e !ecision ,$ic$ states t$at t$e t$ree ;1< s%s&ensions are a((irme! t$ere a&&ears to be no reason ,$' t$e secon! or!er s$o%l! not be serve! (or anot$er G5D !a' &erio!. Ho,ever t$ere is no cogent reason ,$' %n!er t$e biBarre circ%mstances o( t$is case S ,$ere t$e res&on!ent )ecretar' $as c$osen to im&ose &reventive s%s&ensions &iecemeal instea! o( consoli!ating t$e several a!ministrative cases o( similar nat%re an! close vintage S ,e cannot allo, t$e conce&t o( sim%ltaneo%s service to a&&l' to t$e secon! or!er ;as ,e !i! in t$e t$ir! or!er<. *t ,o%l! (ollo, t$en t$at t$e secon! or!er is also (%ll' serve! to t$is !ate (or t$e service o( sai! secon! or!er ,o%l! $ave starte! on C #%g%st 1881 ;,$en t$e main !ecision ,as ren!ere! as t$is ,as t$e time ,$en t$is Co%rt (o%n! an! a((irme! t$e vali!it' o( t$e t$ree ;1< s%s&ension or!ers incl%!ing t$e secon! or!er<. 2$e G5D!a' &erio! (rom C #%g%st 1881 e4&ire! on 0 October 1881. 34isting )&ecial Civil #ction in t$e -2C !eeme! moot an! aca!emic. @n!er t$e main !ecision o( t$is Co%rt !ate! C #%g%st 1881 secon! &reventive s%s&ension $as been a((irme!. Artie a v. (antos /Consoli ate above1 %spiritu v. Melgar Facts: On #&ril 11 1881 Garing (ile! a com&laint c$arging Ma'or Melgar o( Na%9an ,it$ grave miscon!%ct o&&ression ab%se o( a%t$orit' c%l&able violation o( t$e Constit%tion an! con!%ct &re9%!icial to t$e best interest o( t$e &%blic service. #ccor!ing to t$e c$arge Melgar ,it$ ab%se o( o((icial (%nction !i! t$en an! t$ere ,il(%ll' %nla,(%ll' an! (elonio%sl' attac+ assa%lt an! %se &ersonal violence %&on t$e &erson o( Garing b' bo4ing an! +ic+ing t$ereb' in(licting %&on t$e latter &$'sical in9%ries on !i((erent &arts o( $is bo!' an! not being contente! or!ere! $is arrest an! !etention in t$e m%nici&al 9ail o( Na%9an Oriental Min!oro ,it$o%t (iling an' c$arges %ntil $e ,as release! t$e (ollo,ing !a'. On #&ril // 1881 t$e )angg%niang =anlala,igan o( Oriental Min!oro re.%ire! Ma'or Melgar to ans,er t$e com&laint. Melgar allege! t$at Garing atten!e! gra!%ation ceremonies !r%n+ an! !isr%&te! s%c$ ceremonies. Garing ,as momentaril' &lace! in c%sto!' (or $is o,n &rotection beca%se $e ,as !r%n+. #n o&en +ni(e ;balisong< ,as ta+en (rom $im. * ,as li+e,ise in(orme! t$at a(ter $e $a! sobere! %& $e ,as tol! to go $ome b%t $e re(%se! to go an! onl' !i! so t$e (ollo,ing morning. #(ter eval%ation t$e )angg%niang =anlala,igan o( Oriental Min!oro recommen!e! to t$e =rovincial Governor t$at res&on!ent be &reventivel' s%s&en!e! (or (ort'D(ive ;0C< !a's &en!ing t$e investigation o( t$e a!ministrative com&laint. On Ma' /1 1881 Ma'or Melgar (ile! a motion to !ismiss t$e a!ministrative com&laint. *t ,as o&&ose! b' Garing. M2D !ismisse!. Mean,$ile &%rs%ant to t$e recommen!ation o( t$e )angg%niang =anlala,igan Governor 3s&irit% &lace! Ma'or Melgar %n!er &reventive s%s&ension. On 7%ne 1 1881 Ma'or Melgar receive! t$e Or!er o( )%s&ension. He (ort$,it$ (ile! a "=etition (or Certiorari ,it$ =reliminar' *n9%nction ,it$ &ra'er (or -estraining Or!er" in t$e -egional 2rial Co%rt o( Oriental Min!oro alleging t$at "t$e or!er o( s%s&ension ,as an arrogant !es&otic an! arbitrar' ab%se o( &o,er" b' t$e Governor. On 7%ne /0 1881 -2C 7%!ge Kirola iss%e! a ,rit o( &reliminar' in9%nction en9oining Governor 3s&irit% (rom im&lementing t$e Or!er o( s%s&ension against Ma'or "ith Ganzon v. CA- see
/1/

Melgar. Governor 3s&irit% (ile! a motion to !ismiss an!?or (or reconsi!eration ,$ic$ 7%!ge Kirola !enie! on 7%l' 1G 1881. Hence t$is &etition (or certiorari an! &ro$ibition. *ss%e: 6on a &rovincial governor ma' s%s&en! a m%nici&al ma'or. )ection G1 C$a&ter *K o( t$e LGC &rovi!es: )ec. G1. =reventive )%s&ension. S ;1< =reventive s%s&ension ma' be im&ose! b' t$e Minister o( Local Government i( t$e res&on!ent is a &rovincial or cit' o((icial b' t$e &rovincial governor i( t$e res&on!ent is an elective m%nici&al o((icial or b' t$e cit' or m%nici&al ma'or i( t$e res&on!ent is an elective baranga' o((icial. ;/< =reventive s%s&ension ma' be im&ose! at an'time a(ter t$e iss%es are 9oine! ,$en t$ere is reasonable gro%n! to believe t$at t$e res&on!ent $as committe! t$e act or acts com&laine! o( ,$en t$e evi!ence o( c%l&abilit' is strong ,$en t$e gravit' o( t$e o((ense so ,arrants or ,$en t$e contin%ance in o((ice o( t$e res&on!ent co%l! in(l%ence t$e ,itnesses or &ose a t$reat to t$e sa(et' an! integrit' o( t$e recor!s an! ot$er evi!ence. *n all cases &reventive s%s&ension s$all not e4ten! be'on! si4t' !a's a(ter t$e start o( sai! s%s&ension. ;1< #t t$e e4&iration o( si4t'D!a's t$e s%s&en!e! o((icial s$all be !eeme! reinstate! in o((ice ,it$o%t &re9%!ice to t$e contin%ation o( t$e &rocee!ings against $im %ntil its termination. Ho,ever i( t$e !ela' in t$e &rocee!ings o( t$e case is !%e to $is (a%lt neglect or re.%est t$e time o( t$e !ela' s$all not be co%nte! in com&%ting t$e time o( t$e s%s&ension. Clearl' t$e &rovincial governor o( Oriental Min!oro is a%t$oriBe! b' la, to &reventivel' s%s&en! t$e m%nici&al ma'or o( Na%9an at an'time a(ter t$e iss%es $a! been 9oine! an! an' o( t$e (ollo,ing gro%n!s ,ere s$o,n to e4ist: 1. 6$en t$ere is reasonable gro%n! to believe t$at t$e res&on!ent $as committe! t$e act or acts com&laine! o(A /. 6$en t$e evi!ence o( c%l&abilit' is strongA 1. 6$en t$e gravit' o( t$e o((ense so ,arrantsA or 0. 6$en t$e contin%ance in o((ice o( t$e res&on!ent co%l! in(l%ence t$e ,itnesses or &ose a t$reat to t$e sa(et' an! integrit' o( t$e recor!s an! ot$er evi!ence. 2$ere is not$ing im&ro&er in s%s&en!ing an o((icer be(ore t$e c$arges against $im are $ear! an! be(ore $e is given an o&&ort%nit' to &rove $is innocence. =reventive s%s&ension is allo,e! so t$at t$e res&on!ent ma' not $am&er t$e normal co%rse o( t$e investigation t$ro%g$ t$e %se o( $is in(l%ence an! a%t$orit' over &ossible ,itnesses. )ince res&on!ent ma'or believe! t$at $is &reventive s%s&ension ,as %n9%sti(ie! an! &oliticall' motivate! $e s$o%l! $ave so%g$t relie( (irst (rom t$e )ecretar' o( *nterior an! Local Government not (rom t$e co%rts. Ma'or MelgarHs !irect reco%rse to t$e co%rts ,it$o%t e4$a%sting a!ministrative reme!ies ,as &remat%re. 2$e regional trial co%rt $a! no 9%ris!iction over )&ecial Civil #ction No. -DC551 an! gravel' ab%se! its !iscretion in re(%sing to !ismiss t$e case. 2$ere ma' e4ist $onest !i((erences o( o&inion ,it$ regar! to t$e serio%sness o( t$e c$arges or as to ,$et$er t$e' ,arrant !isci&linar' action. Ho,ever as a general r%le t$e o((ice or bo!' t$at is investe! ,it$ t$e &o,er o( removal or s%s&ension s$o%l! be t$e sole 9%!ge o( t$e necessit' an! s%((icienc' o( t$e ca%se. )o %nless a (lagrant ab%se o( t$e e4ercise o( t$at &o,er is s$o,n &%blic &olic' an! a becoming regar! (or t$e &rinci&le o( se&aration o( &o,ers !eman! t$at t$e action o( sai! o((icer or bo!' s$o%l! be le(t %n!ist%rbe!. Ho,ever in t$is &artic%lar case since t$e G5D !a' &reventive s%s&ension o( Ma'or Melgar ,as maintaine! b' t$e 2em&orar' -estraining Or!er ,$ic$ ,e iss%e! on #%g%st G 1881 an! t$ere(ore $as alrea!' been serve! $e is !eeme! reinstate! in o((ice ,it$o%t &re9%!ice to t$e contin%ation o( t$e a!ministrative investigation o( t$e c$arges against $im. Aguinal o v. (antos Facts: #g%inal!o ,as t$e !%l' electe! Governor o( t$e &rovince o( Caga'an $aving been electe! to sai! &osition !%ring t$e local elections $el! on 7an%ar' 17 1888 to serve a term o( (o%r ;0< 'ears t$ere(rom. He too+ $is oat$ sometimes aro%n! Marc$ 1888. )$ortl' a(ter December 1888 co%& !Hetat ,as cr%s$e! res&on!ent )ecretar' o( Local Government sent a telegram an! a letter bot$ !ate! December 0 1888 to &etitioner re.%iring $im to s$o, ca%se ,$' s$o%l! not be s%s&en!e! or remove (rom o((ice (or !islo'alt' to t$e -e&%blic ,it$in (ort'Deig$t ;08< $o%rs (rom recei&t t$ereo(. On December 7 1888 a s,orn com&laint (or !islo'alt' to t$e -e&%blic an! c%l&able violation o( t$e Constit%tion ,as (ile! b' t$e
/11

#gate&s an! Mamba ma'ors o( m%nici&alities in Caga'an against &etitioner (or acts t$e latter committe! !%ring t$e co%&. =etitioner !enie! being &riv' to t$e &lanning o( t$e co%& or activel' &artici&ating in its e4ec%tion t$o%g$ $e a!mitte! t$at $e ,as s'm&at$etic to t$e ca%se o( t$e rebel sol!iers. On t$e basis t$ereo( res&on!ent )ecretar' s%s&en!e! &etitioner (rom o((ice (or si4t' ;G5< !a's (rom notice &en!ing t$e o%tcome o( t$e (ormal investigation into t$e c$arges against $im. 2$e )ecretar' (o%n! &etitioner g%ilt' an! or!ere! $is removal (rom o((ice. 6$ile t$is case ,as &en!ing be(ore t$is Co%rt &etitioner (ile! $is certi(icate o( can!i!ac' (or t$e &osition o( Governor o( Caga'an (or t$e Ma' 11 188/ elections. 2$ree se&arate &etitions (or $is !is.%ali(ication ,ere t$en (ile! against $im all base! on t$e gro%n! t$at $e $a! been remove! (rom o((ice b' virt%e o( t$e Marc$ 18 1885 resol%tion o( res&on!ent )ecretar'. 2$e COM3L3C grante! t$e &etitions. On t$e same !a' acting %&on a "Motion to Clari('" (ile! b' &etitioner t$e Commission r%le! t$at inasm%c$ as t$e resol%tions o( t$e Commission becomes (inal an! e4ec%tor' onl' a(ter (ive ;C< !a's (rom &rom%lgation &etitioner ma' still be vote! %&on as a can!i!ate (or governor &en!ing t$e (inal o%tcome o( t$e !is.%ali(ication cases ,it$ $is Co%rt. Conse.%entl' on Ma' 11 188/ &etitioner (ile! a &etition (or certiorari ,it$ t$is Co%rt see+ing to n%lli(' t$e resol%tion o( t$e Commission or!ering $is !is.%ali(ication. 2$e Co%rt in a resol%tion !ate! Ma' 10 188/ iss%e! a 2-O against t$e Commission to cease an! !esist (rom en(orcing its Ma' 8 188/ resol%tion &en!ing t$e o%tcome o( t$e !is.%ali(ication case t$ereb' allo,ing t$e canvassing o( t$e votes an! ret%rns in Caga'an to &rocee!. Ho,ever t$e Commission ,as or!ere! not to &roclaim a ,inner %ntil t$is Co%rt $as !eci!e! t$e case. On 7%ne 8 188/ a resol%tion ,as iss%e! in t$e a(orementione! case granting &etition an! ann%lling t$e Ma' 8 188/ resol%tion o( t$e Commission on t$e gro%n! t$at t$e !ecision o( res&on!ent )ecretar' $as not 'et attaine! (inalit' an! is still &en!ing revie, ,it$ t$is Co%rt. #s &etitioner ,on b' a lan!sli!e margin in t$e elections t$e resol%tion &ave! t$e ,a' (or $is event%al &roclamation as Governor o( Caga'an. *ss%es: 1. 6ON an o((icical ma' be &%nis$ (or acts committe! in a &revio%s term Case Moot an! aca!emic beca%se o( #g%inal!o>s reelection. # &%blic o((icial can not be remove! (or a!ministrative miscon!%ct committe! !%ring a &rior term since $is reD election to o((ice o&erates as a con!onation o( t$e o((icerHs &revio%s miscon!%ct to t$e e4tent o( c%tting o(( t$e rig$t to remove $im t$ere(or. 2$e (oregoing r%le $o,ever (in!s no a&&lication to criminal cases &en!ing against &etitioner (or acts $e ma' $ave committe! !%ring t$e (aile! co%&. 6ON t$e &o,er o( res&on!ent )ecretar' to s%s&en! or remove local government o((icial %n!er )ection G5 C$a&ter *K o( B.=. Blg. 117 ,as re&eale! b' t$e 1887 Constit%tion. 2$e &o,er o( res&on!ent )ecretar' to remove local government o((icials is anc$ore! on bot$ t$e Constit%tion an! a stat%tor' grant (rom t$e legislative branc$. 2$e constit%tional basis is &rovi!e! b' #rticles K** ;17< an! J ;0< o( t$e 1887 Constit%tion ,$ic$ vest in t$e =resi!ent t$e &o,er o( control over all e4ec%tive !e&artments b%rea%s an! o((ices an! t$e &o,er o( general s%&ervision over local governments an! b' t$e !octrine t$at t$e acts o( t$e !e&artment $ea! are &res%m&tivel' t$e acts o( t$e =resi!ent %nless e4&ressl' re9ecte! b' $im. 2$e stat%tor' grant (o%n! in B.=. Blg. 117 itsel( $as constit%tional roots $aving been enacte! b' t$e t$en Batasan =ambansa &%rs%ant to #rticle J* o( t$e 1871 Constit%tion )ection / o( ,$ic$ s&eci(icall' &rovi!e! as (ollo,s: )ec. /. 2$e National #ssembl' s$all enact a LGC ,$ic$ ma' not t$erea(ter be amen!e! e4ce&t b' a ma9orit' vote o( all its Members !e(ining a more res&onsive an! acco%ntable local government str%ct%re ,it$ an e((ective s'stem o( recall allocating among t$e !i((erent local government %nits t$eir &o,ers res&onsibilities an! reso%rces an! &rovi!ing (or t$e .%ali(ications election an! removal term salaries &o,er (%nctions an! !%ties o( local government o((icials an! all ot$er matters relating to t$e organiBation an! o&eration o( t$e local %nits. Ho,ever an' c$ange in t$e e4isting (orm o( local government s$all not ta+e e((ect %ntil rati(ie! b' a ma9orit' o( t$e votes cast in t$e &lebiscite calle! (or t$e &%r&ose. # similar &rovision is (o%n! in )ection 1 #rticle J o( t$e 1887 Constit%tion ,$ic$ rea!s: )ec. 1. 2$e Congress s$all enact a LGC ,$ic$ s$all &rovi!e! (or a more res&onsive an! acco%ntable local government str%ct%re instit%te! t$ro%g$ a s'stem o( !ecentraliBation ,it$ e((ective mec$anisms o( recall initiative an! re(eren!%m allocate among t$e !i((erent local government %nits t$eir &o,ers
/10

res&onsibilities an! reso%rces an! &rovi!e (or t$e .%ali(ications election a&&ointment an! removal term an! salaries &o,ers an! (%nctions an! !%ties o( local o((icials an! all ot$er matters relating to t$e organiBation an! o&eration o( t$e local %nits. *nasm%c$ as t$e &o,er an! a%t$orit' o( t$e legislat%re to enact a LGC ,$ic$ &rovi!es (or t$e manner o( removal o( local government o((icials is (o%n! in t$e 1871 Constit%tion as ,ell as in t$e 1887 Constit%tion t$en it can not be sai! t$at B= Blg. 117 ,as re&eale! b' t$e e((ective o( t$e &resent Constit%tion. Bagab%'o v. Davi!e: t$at B.=. Blg. 117 remaine! in (orce !es&ite t$e e((ectivit' o( t$e &resent Constit%tion %ntil s%c$ time as t$e &ro&ose! LGC o( 1881 is a&&rove!. 2$e &o,er o( res&on!ent )ecretar' o( t$e De&artment o( Local Government to remove local elective government o((icials is (o%n! in )ecs. G5 an! G1 o( B.=. Blg. 117. #s to &etitionerHs arg%ment o( t$e ,ant o( a%t$orit' o( res&on!ent )ecretar' to a&&oint res&on!ent Melvin Kargas as Governor o( Caga'an 6e nee! b%t &oint to )ection 08 ;1< o( B.=. Blg 117 to s$o, t$e (allac' o( t$e same to ,it S *n case a &ermanent vacanc' arises ,$en a governor . . . re(%ses to ass%me o((ice (ails to .%alit' !ies or is remove! (rom o((ice vol%ntaril' resigns or is ot$er,ise &ermanentl' inca&acitate! to !isc$arge t$e (%nctions o( $is o((ice t$e viceDgovernor . . . s$all ass%me t$e o((ice (or t$e %ne4&ire! term o( t$e (ormer. 6ON t$e allege! act o( !islo'alt' committe! b' &etitioner s$o%l! be &rove! b' &roo( be'on! reasonable !o%bt an! not be a mere &re&on!erance o( evi!ence beca%se it is an act &%nis$able as rebellion %n!er t$e -evise! =enal Co!e. =etitioner is not being &rosec%te! criminall' %n!er t$e &rovisions o( t$e -evise! =enal Co!e b%t a!ministrativel' ,it$ t$e en! in vie, o( removing &etitioner as t$e !%l' electe! Governor o( Caga'an =rovince (or acts o( !islo'alt' to t$e -e&%blic ,$ere t$e .%ant%m o( &roo( re.%ire! is onl' s%bstantial evi!ence. Ma' 11 188/. On October /G 1880 an a!ministrative com&laint ,as (ile! against $im ,it$ t$e )angg%niang =anlala,igan b' Manalo. *t ,as allege! among ot$er t$ings t$at &etitioner e4acte! an! collecte! =C5 555 55 (rom eac$ mar+et stall $ol!er in t$e Bongabong =%blic Mar+etA t$at certain c$ec+s iss%e! to $im b' t$e National -econciliation an! Develo&ment =rogram o( t$e De&artment o( *nterior an! Local Government ,ere never receive! b' t$e M%nici&al 2reas%rer nor re(lecte! in t$e boo+s o( acco%nts o( t$e same o((icerA an! t$at $e too+ t,ent'Dseven ;/7< $ea!s o( cattle (rom bene(iciaries o( a cattle !is&ersal &rogram a(ter t$e latter $a! reare! an! (attene! t$e cattle (or seven mont$s. *n its !ecision !ate! Febr%ar' G 188C t$e )angg%niang =anlala,igan (o%n! &etitioner g%ilt' o( t$e c$arges an! or!ere! $is removal (rom o((ice. *t a&&ears t$at earlier a(ter learning t$at t$e )angg%nian $a! terminate! t$e &rocee!ings in t$e case an! ,as abo%t to ren!er 9%!gment &etitioner (ile! a &etition (or certiorari &ro$ibition an! in9%nction ,it$ t$e -egional 2rial Co%rt o( Oriental Min!oro Branc$ 0/ alleging t$at t$e &rocee!ings $a! been terminate! ,it$o%t giving $im a c$ance to be $ear!. # 2-O ,as iss%e! b' t$e co%rt on Febr%ar' 7 188C en9oining t$e )angg%niang =anlala,igan (rom &rocee!ing ,it$ t$e case. #s a res%lt t$e !ecision o( t$e )angg%niang =anlala,igan co%l! not be serve! %&on -e'es. B%t on Marc$ 1 188C (ollo,ing t$e e4&iration o( t$e tem&orar' restraining or!er an! ,it$o%t an' in9%nction being iss%e! b' t$e -egional 2rial Co%rt an attem&t ,as ma!e to serve t$e !ecision %&on &etitionerHs co%nsel in Manila. Ho,ever t$e latter re(%se! to acce&t t$e !ecision. )%bse.%ent attem&ts to serve t$e !ecision %&on &etitioner $imsel( also (aile! as $e also re(%se! to acce&t t$e !ecision. On Marc$ /1 188C t$e =resi!ing O((icer o( t$e )angg%niang =anlala,igan Kice Governor =e!rito #. -e'es iss%e! an or!er (or &etitioner to vacate t$e &osition o( ma'or an! &eace(%ll' t%rn over t$e o((ice to t$e inc%mbent vice ma'or. B%t service o( t$e or!er %&on &etitioner ,as also re(%se!. Mean,$ile on Marc$ /5 188C &etitioner (ile! a certi(icate o( can!i!ac' ,it$ t$e O((ice o( t$e 3lection O((icer o( t$e COM3L3C in Bongabong. On Marc$ /0 188C &rivate res&on!ent -ogelio !e Castro as registere! voter o( Bongabong so%g$t t$e !is.%ali(ication o( &etitioner as can!i!ate (or ma'or citing t$e LGC o( 1881 ;-.#. No .71G5< ,$ic$ states: c05. Dis.%ali(ication. S 2$e (ollo,ing &ersons are !is.%ali(ie! (rom r%nning (or an' elective local &osition: ;b< 2$ose remove! (rom o((ice as a res%lt o( an a!ministrative case. Nonet$eless beca%se o( t$e absence o( an'
Re#es v. COM%L%C Facts: -e'es ,as t$e inc%mbent ma'or o( t$e m%nici&alit' o( Bongabong Oriental Min!oro $aving been electe! to t$at o((ice on
/1C

contrar' or!er (rom t$e COM3L3C &etitioner -e'es ,as vote! (or in t$e elections $el! on Ma' 8 188C. On Ma' 8 188C t$e COM3L3CHs )econ! Division !is.%ali(ie! -e'es. On Ma' 15 188C t$e M%nici&al Boar! o( Canvassers o( Bongabong a&&arentl' %na,are o( t$e !is.%ali(ication o( -e'es b' t$e COM3L3C &roclaime! $im t$e !%l'Delecte! ma'or. M- !enie!. 3n banc: vali!l' !is.%ali(ie!. Hence t$e &etition. *ss%e: 1. 6ON !ecision o( t$e )angg%niang =anlala,igan or!ering -e'es remove! (rom o((ice is not 'et (inal beca%se $e $as not been serve! a co&' t$ereo(. Fail%re o( t$e )angg%niang =anlala,igan to !eliver a co&' o( its !ecision ,as !%e to t$e re(%sal o( &etitioner an! $is co%nsel to receive t$e !ecision. #s t$e secretar' to t$e )angg%niang =anlala,igan Mario ManBo state! in $is certi(ication re&eate! attem&ts $a! been ma!e to serve t$e !ecision on -e'es &ersonall' an! b' registere! mail b%t -e'es re(%se! to receive t$e !ecision. -%le 11 cc 1 an! 7 o( t$e -%les o( Co%rt &rovi!e (or t$e service o( (inal or!ers an! 9%!gments eit$er &ersonall' or b' mail. =ersonal service is com&lete! %&on act%al or constr%ctive !eliver' ,$ic$ ma' be ma!e b' !elivering a co&' &ersonall' to t$e &art' or $is attorne' or b' leaving it in $is o((ice ,it$ a &erson $aving c$arge t$ereo( or at $is resi!ence i( $is o((ice is not +no,n. 0 Hence service ,as com&lete! ,$en t$e !ecision ,as serve! %&on &etitionerHs co%nsel in $is o((ice in Manila on Marc$ 1 188C. *n a!!ition as t$e secretar' o( t$e )angg%niang =anlala,igan certi(ie! service b' registere! mail ,as also ma!e on &etitioner -e'es. #lt$o%g$ t$e mail containing t$e !ecision ,as not claime! b' $im service ,as !eeme! com&lete! (ive !a's a(ter t$e last notice to $im on Marc$ /7 188C. *( a 9%!gment or !ecision is not !elivere! to a &art' (or reasons attrib%table to $im service is !eeme! com&lete! an! t$e 9%!gment or !ecision ,ill be consi!ere! vali!l' serve! as long as it can be s$o,n t$at t$e attem&t to !eliver it to $im ,o%l! be vali! ,ere it not (or $is or $is co%nselHs re(%sal to receive it. *n!ee! t$at &etitionerHs co%nsel +ne, t$at a !ecision in t$e a!ministrative case $a! been ren!ere! is evi!ent in $is e((ort to bargain ,it$ t$e co%nsel (or t$e )angg%niang =anlala,igan not to $ave t$e !ecision serve! %&on $im an! $is client ,$ile t$eir &etition (or certiorari in t$e -egional 2rial Co%rt ,as &en!ing. His re(%sal to receive t$e !ecision ma' t$ere(ore be constr%e! as a ,aiver on $is &art to $ave a co&' o( t$e !ecision. =etitioner ,as given s%((icient notice o( t$e !ecision. =r%!ence re.%ire! t$at rat$er t$an resist t$e service $e s$o%l! $ave receive! t$e !ecision an! ta+en an a&&eal to t$e O((ice o( t$e =resi!ent in accor!ance ,it$ -.#. No. 71G5 c G7. 8 B%t &etitioner !i! not !o so. #ccor!ingl' t$e !ecision became (inal on #&ril / 188C 15 !a's a(ter t$e (irst service %&on &etitioner. 2$e net res%lt is t$at ,$en t$e elections ,ere $el! on Ma' 8 188C t$e !ecision o( t$e )angg%niang =anlala,igan $a! alrea!' become (inal an! e4ec%tor'. 2$e (iling o( a &etition (or certiorari ,it$ t$e -egional 2rial Co%rt !i! not &revent t$e a!ministrative !ecision (rom attaining (inalit'. #n original action o( certiorari is an in!e&en!ent action an! !oes not interr%&t t$e co%rse o( t$e &rinci&al action nor t$e r%nning o( t$e reglementar' &erio! involve! in t$e &rocee!ing. Conse.%entl' to arrest t$e co%rse o( t$e &rinci&al action !%ring t$e &en!enc' o( t$e certiorari &rocee!ings t$ere m%st be a restraining or!er or a ,rit o( &reliminar' in9%nction (rom t$e a&&ellate co%rt !irecte! to t$e lo,er co%rt. *n t$e case at bar alt$o%g$ a tem&orar' restraining or!er ,as iss%e! b' t$e -egional 2rial Co%rt no &reliminar' in9%nction ,as s%bse.%entl' iss%e!. 2$e tem&orar' restraining or!er iss%e! e4&ire! a(ter /5 !a's. From t$at moment on t$ere ,as no more legal barrier to t$e service o( t$e !ecision %&on &etitioner. =etitioner claims t$at t$e !ecision cannot be serve! %&on $im beca%se at t$e $earing $el! on Febr%ar' 1C 188C o( t$e case ,$ic$ $e (ile! in t$e -2C t$e co%nsel o( t$e )angg%niang =anlala,igan #tt'. Nestor #tienBa agree! not to e((ect service o( t$e !ecision o( t$e )angg%niang =anlala,igan &en!ing (inal resol%tion o( t$e &etition (or certiorari. 2$e allege! agreement bet,een t$e co%nsels o( -e'es an! t$e )angg%niang =anlala,igan cannot bin! t$e )angg%niang =anlala,igan. *t ,as illegal . #n! it ,o%l! $ave been no less illegal (or t$e )angg%niang =anlala,igan to $ave carrie! it o%t beca%se -.#. No. 71G5 c GG ;a< ma+es it man!ator' t$at
/1G

"UcVo&ies o( t$e !ecision Uo( t$e )angg%niang =anlala,iganV s$all imme!iatel' be (%rnis$e! to res&on!ent an!?or intereste! &arties." *t ,as t$e )angg%niang =anlala,iganHs !%t' to serve it %&on t$e &arties ,it$o%t %nnecessar' !ela'. 2o $ave !ela'e! t$e service o( t$e !ecision ,o%l! $ave res%lte! in t$e )angg%niang =anlala,iganHs (ail%re to &er(orm a legal !%t'. *t t$ere(ore &ro&erl' acte! in $aving its !ecision serve! %&on &etitioner -e'es. 6ON election o( &etitioner ren!ere! t$e a!ministrative c$arges against $im moot an! aca!emic. =etitioner invo+es t$e r%ling in #g%inal!o v. COM3L3C ,$ic$ $el! t$at a &%blic o((icial co%l! not be remove! (or miscon!%ct committe! !%ring a &rior term an! t$at $is reelection o&erate! as a con!onation o( t$e o((icerHs &revio%s miscon!%ct to t$e e4tent o( c%tting o(( t$e rig$t to remove $im t$ere(or. B%t t$at ,as beca%se in t$at case be(ore t$e &etition .%estioning t$e vali!it' o( t$e a!ministrative !ecision removing &etitioner co%l! be !eci!e! t$e term o( o((ice !%ring ,$ic$ t$e allege! miscon!%ct ,as committe! e4&ire!. -emoval cannot e4ten! be'on! t$e term !%ring ,$ic$ t$e allege! miscon!%ct ,as committe!. *( a &%blic o((icial is not remove! be(ore $is term o( o((ice e4&ires $e can no longer be remove! i( $e is t$erea(ter reelecte! (or anot$er term. 2$e case at bar is t$e ver' o&&osite o( t$ose cases. Here alt$o%g$ &etitioner -e'es bro%g$t an action to .%estion t$e !ecision in t$e a!ministrative case t$e tem&orar' restraining or!er iss%e! in t$e action $e bro%g$t la&se! ,it$ t$e res%lt t$at t$e !ecision ,as serve! on &etitioner an! it t$erea(ter became (inal on #&ril 1 188C beca%se &etitioner (aile! to a&&eal to t$e O((ice o( t$e =resi!ent. He ,as t$%s vali!l' remove! (rom o((ice an! &%rs%ant to c 05;b< o( t$e LGC $e ,as !is.%ali(ie! (rom r%nning (or reelection. #t t$e time t$e #g%inal!o cases ,ere !eci!e! t$ere ,as no &rovision similar to c 05;b< ,$ic$ !is.%ali(ies an' &erson (rom r%nning (or an' elective &osition on t$e gro%n! t$at $e $as been remove! as a res%lt o( an a!ministrative case. 2$e LGC o( 1881 ;-.#. No. 71G5< co%l! not be given retroactive e((ect. )ai! t$e Co%rt in t$e (irst #g%inal!o case: 2$e COM3L3C a&&lie! )ection 05;b< o( t$e LGC -e&%blic #ct 71G5< ,$ic$ &rovi!es: )ec. 05. 2$e (ollo,ing &ersons are !is.%ali(ie! (rom r%nning (or an' elective local &osition: ;b< 2$ose remove! (rom o((ice as a res%lt o( an a!ministrative case. -e&%blic #ct 71G5 too+ e((ect onl' on 7an%ar' 1 188/. 2$ere is no &rovision in t$e stat%te ,$ic$ ,o%l! clearl' in!icate t$at t$e same o&erates retroactivel'. 05;b< o( t$e LGC is not a&&licable to t$e &resent case. #ll in all $erein res&on!ent Ma'or -e'es ,as given b' t$is )angg%nian a &erio! o( si4t' one ;G1< !a's to (ile $is veri(ie! ans,er $o,ever $e resorte! to !ilator' motions ,$ic$ in t$e en! &rove! (atal to $is ca%se. Keritabl' $e neit$er (ile! nor (%rnis$e! t$e com&lainant a co&' o( $is ans,er. Fail%re o( t$e res&on!ent to (ile $is veri(ie! ans,er ,it$in (i(teen ;1C< !a's (rom recei&t o( t$e com&laint s$all be consi!ere! a ,aiver o( $is rig$ts to &resent evi!ence in $is be$al( ;;1<. #rt. 1/G o( -%les an! -eg%lations im&lementing t$e LGC o( 1881<. #ll &ersons s$all $ave t$e rig$t to a s&ee!' !is&osition o( t$eir cases be(ore all 9%!icial .%asiD9%!icial or a!ministrative bo!ies ;)ec. 1G #rt. *** o( t$e Constit%tion<. *n!ee! it a&&ears t$at &etitioner ,as given s%((icient o&&ort%nit' to (ile $is ans,er. He (aile! to !o so. Nonet$eless $e ,as tol! t$at t$e com&lainant ,o%l! be &resenting $is evi!ence an! t$at $e ;&etitioner< ,o%l! t$en $ave t$e o&&ort%nit' to crossDe4amine t$e ,itnesses. B%t on t$e !ate set $e (aile! to a&&ear. He ,o%l! sa' later t$at t$is ,as beca%se $e $a! (ile! a motion (or &ost&onement an! ,as a,aiting a r%ling t$ereon. 2$is onl' betra's t$e &attern o( !ela' $e em&lo'e! to ren!er t$e case against $im moot b' $is election. 6ON COM3L3C committe! a grave ab%se o( !iscretion in !en'ing &etitioner 7%li%s O. GarciaHs &etition to be &roclaime! ma'or in vie, o( t$e !is.%ali(ication o( -enato @. -e'es. 2o sim&listicall' ass%me t$at t$e secon! &lacer ,o%l! $ave receive! t$e ot$er votes ,o%l! be to s%bstit%te o%r 9%!gment (or t$e min! o( t$e voter. 2$e secon! &lacer is 9%st t$at a secon! &lacer. He lost t$e elections. He ,as re&%!iate! b' eit$er a ma9orit' or &l%ralit' o( voters. He co%l! not be consi!ere! t$e (irst among .%ali(ie! can!i!ates beca%se in a (iel! ,$ic$ e4cl%!es t$e !is.%ali(ie! can!i!ate t$e con!itions ,o%l! $ave s%bstantiall' c$ange!. 6e are
/.
/.
/17

not &re&are! to e4tra&olate t$e res%lts %n!er t$e circ%mstances. 9aga v. Gozo;*a ole o( (actsA C. #re in t$e e4ercise o( !iscretionar' &o,ers b%t (or an im&ro&er &%r&oseA or G. #re ot$er,ise irreg%lar immoral or !evoi! o( 9%sti(ication. )ec. /1. O((icials )%b9ect to Disci&linar' #%t$orit'A 34ce&tions. S 2$e O((ice o( t$e Omb%!sman s$all $ave !isci&linar' a%t$orit' over all elective an! a&&ointive o((icials o( t$e Government an! its s%b!ivisions instr%mentalities an! agencies incl%!ing Members o( t$e Cabinet local government governmentDo,ne! or controlle! cor&orations an! t$eir s%bsi!iaries e4ce&t over o((icials ,$o ma' be remove! onl' b' im&eac$ment or over Members o( Congress an! t$e 7%!iciar'. )ection /0 o( -.#. No. G775: =reventive )%s&ension. S 2$e Omb%!sman or $is De&%t' ma' &reventivel' s%s&en! an' o((icer or em&lo'ee %n!er $is a%t$orit' &en!ing an investigation i( in $is 9%!gment t$e evi!ence o( g%ilt is strong an! ;a< t$e c$arge against s%c$ o((icer or em&lo'ee involves !is$onest' o&&ression or grave miscon!%ct or neglect in t$e &er(ormance o( !%t'A ;b< t$e c$arges ,o%l! ,arrant removal (rom t$e serviceA or ;c< t$e res&on!entHs contin%e! sta' in o((ice ma' &re9%!ice t$e case (ile! against $im. 2$e &reventive s%s&ension s$all contin%e %ntil t$e case is terminate! b' t$e O((ice o( t$e Omb%!sman b%t not more t$an si4 mont$s ,it$o%t &a' e4ce&t ,$en t$e !ela' in t$e !is&osition o( t$e case b' t$e O((ice o( t$e Omb%!sman is !%e to t$e (a%lt negligence or &etition o( t$e res&on!ent in ,$ic$ case t$e &erio! o( s%c$ !ela' s$all not be co%nte! in com&%ting t$e &erio! o( s%s&ension $erein &rovi!e!. 2$ere is not$ing in t$e LGC to in!icate t$at it $as re&eale! ,$et$er e4&ressl' or im&lie!l' t$e &ertinent &rovisions o( t$e Omb%!sman #ct. 2$e t,o stat%tes on t$e s&eci(ic matter in .%estion are not so inconsistent let alone irreconcilable as to com&el %s to onl' %&$ol! one an! stri+e !o,n t$e ot$er . 6ell settle! is t$e r%le t$at re&eals o( la,s b' im&lication are not (avore! an! t$at co%rts m%st generall' ass%me t$eir congr%ent a&&lication. 2$e t,o la,s m%st be absol%tel' incom&atible an! a clear (in!ing t$ereo( m%st s%r(ace be(ore t$e in(erence o( im&lie! re&eal ma' be !ra,n. 2$e r%le is e4&resse! in t$e ma4im inter&retare et concor!are legib%s est o&tim%s inter&reten!i i.e. ever' stat%te m%st be so inter&rete! an! bro%g$t into accor! ,it$ ot$er la,s as to (orm a %ni(orm s'stem o( 9%ris&r%!ence.
Facts: Criminal an! a!ministrative com&laints ,ere (ile! against Ma'or O%ano KiceDMa'or CaRete an! )angg%niang =anl%ngso! Member Ma'ol all &%blic o((icials o( Man!a%e Cit' b' Man!a%e Cit' Co%ncilors Dionson an! Berce!e ,it$ t$e O((ice o( t$e De&%t' Omb%!sman (or t$e Kisa'as. Co%ncilors Dionson an! Berce!e averre! t$at res&on!ent o((icials acting in cons&irac' $a! ca%se! t$e alteration an!?or (alsi(ication o( Or!inance No. 518?8/ b' increasing t$e allocate! a&&ro&riation t$erein (rom =1 080 1G0.C7 to =7 555 555.55 ,it$o%t a%t$orit' (rom t$e )angg%niang =anl%ngso! o( Man!a%e Cit'. 2$e' move! (or t$e &reventive s%s&ension o( res&on!ent o((icials in t$e se&aratel' !oc+ete! a!ministrative case. #si!e (rom o&&osing t$e motion (or &reventive s%s&ension res&on!ent o((icials on 5C #%g%st 188/ &ra'e! (or t$e !ismissal o( t$e com&laint on t$e gro%n! t$at t$e Omb%!sman s%&&ose!l' ,as bere(t o( 9%ris!iction to tr' $ear an! !eci!e t$e a!ministrative case (ile! against t$em since %n!er )ection G1 o( t$e LGC o( 1881 t$e &o,er to investigate an! im&ose a!ministrative sanctions against sai! local o((icials as ,ell as to e((ect t$eir &reventive s%s&ension $a! no, been veste! ,it$ t$e O((ice o( t$e =resi!ent. *ss%e: 1. 6ON t$e Omb%!sman $as 9%ris!iction. 2$e general investigator' &o,er o( t$e Omb%!sman is !ecree! b' )ection 11 ;1 < #rticle J* o( t$e 1887 Constit%tion 10 t$%s: )ec. 11. 2$e O((ice o( t$e Omb%!sman s$all $ave t$e (ollo,ing &o,ers (%nctions an! !%ties: ;1< *nvestigate on its o,n or on com&laint b' an' &erson an' act or omission o( an' &%blic o((icial em&lo'ee o((ice or agenc' ,$en s%c$ act or omission a&&ears to be illegal %n9%st im&ro&er or ine((icientA )ection 18 o( -.#. No. G775: #!ministrative com&laints. S 2$e Omb%!sman s$all act on all com&laints relating b%t not limite! to acts or omissions ,$ic$: 1. #re contrar' to la, or reg%lationA /. #re %nreasonable %n(air o&&ressive or !iscriminator'A 1. #re inconsistent ,it$ t$e general co%rse o( an agenc'Hs (%nctions t$o%g$ in accor!ance ,it$ la,A 0. =rocee! (rom a mista+e o( la, or an arbitrar' ascertainment
/18

2$e (%n!ament is t$at t$e legislat%re s$o%l! be &res%me! to $ave +no,n t$e e4isting la,s on t$e s%b9ect an! not to $ave enacte! con(licting stat%tes. Hence all !o%bts m%st be resolve! against an' im&lie! re&eal an! all e((orts s$o%l! be e4erte! in or!er to $armoniBe an! give e((ect to all la,s on t$e s%b9ect. Certainl' Congress ,o%l! not $ave inten!e! to !o in9%stice to t$e ver' reason t$at %n!erlies t$e creation o( t$e Omb%!sman in t$e 1887 Constit%tion ,$ic$ "is to ins%late sai! o((ice (rom t$e long tentacles o( o((icial!om." )ections G1 an! G1 o( t$e &resent LGC r%n almost &arallel ,it$ t$e &rovisions t$en e4isting %n!er t$e ol! co!e. )ection G1 an! )ection G1 o( t$e &rec%rsor LGC o( 1881 %n!er t$e $ea!ing o( ")%s&ension an! -emoval " rea!: )ec. G1. Form an! Filing o( Com&laints. S Keri(ie! com&laints against local elective o((icials s$all be &re&are! as (ollo,s: ;a< #gainst an' elective &rovincial or cit' o((icial be(ore t$e Minister o( Local Government. )ec. G1. =reventive )%s&ension. S ;1< =reventive s%s&ension ma' be im&ose! b' t$e Minister o( Local Government i( t$e res&on!ent is a &rovincial or cit' o((icial b' t$e &rovincial governor i( t$e res&on!ent is an elective m%nici&al o((icial or b' t$e cit' or m%nici&al ma'or i( t$e res&on!ent is an elective baranga' o((icial. ;/< =reventive s%s&ension ma' be im&ose! at an' time a(ter t$e iss%es are 9oine! ,$en t$ere is reasonable gro%n! to believe t$at t$e res&on!ent $as committe! t$e act or acts com&laine! o( ,$en t$e evi!ence o( c%l&abilit' is strong ,$en t$e gravit' o( t$e o((ense so ,arrants or ,$en t$e contin%ance in o((ice o( t$e res&on!ent co%l! in(l%ence t$e ,itnesses or &ose a t$reat to t$e sa(et' an! integrit' o( t$e recor!s an! ot$er evi!ence. *n all cases &reventive s%s&ension s$all not e4ten! be'on! si4t' !a's a(ter t$e start o( sai! s%s&ension. ;1< #t t$e e4&iration o( si4t' !a's t$e s%s&en!e! o((icial s$all be !eeme! reinstate! in o((ice ,it$o%t &re9%!ice to t$e contin%ation o( t$e &rocee!ings against $im %ntil its termination. Ho,ever i( t$e !ela' in t$e &rocee!ings o( t$e case is !%e to $is (a%lt neglect or re.%est t$e time o( t$e !ela' s$all not be co%nte! in com&%ting t$e time o( s%s&ension. 2$e a%t$orit' to con!%ct a!ministrative investigation an! to im&ose &reventive s%s&ension over elective &rovincial or cit' o((icials ,as at t$at time entr%ste! to t$e Minister o( Local Government %ntil it became conc%rrent ,it$ t$e Omb%!sman %&on t$e enactment o( -.#. No. G775 s&eci(icall' %n!er )ections /1 an! /0 t$ereo( to t$e e4tent o( t$e common grant. 2$e LGC o( 1881 ;-.#. No. 71G5< in (ine !i! not e((ect a c$ange (rom ,$at alrea!' &revaile! t$e mo!i(ication being onl' in t$e s%bstit%tion o( t$e )ecretar' ;t$e Minister< o( Local Government b' t$e O((ice o( t$e =resi!ent. 6ON t$e GDmont$ &reventive s%s&ension ,it$o%t &a' %n!er )ection /0 o( t$e Omb%!sman #ct is m%c$ too re&%gnant to t$e G5D!a' &reventive s%s&ension &rovi!e! b' )ection G1 o( t$e LGC to even no, maintain it>s a&&lication. 2$e t,o &rovisions govern !i((erentl'. *n or!er to 9%sti(' t$e &reventive s%s&ension o( a &%blic o((icial %n!er )ection /0 o( -.#. No. G775 t$e evi!ence o( g%ilt s$o%l! be strong an! ;a< t$e c$arge against t$e o((icer or em&lo'ee s$o%l! involve !is$onest' o&&ression or grave miscon!%ct or neglect in t$e &er(ormance o( !%t'A ;b< t$e c$arges s$o%l! ,arrant removal (rom t$e serviceA or ;c< t$e res&on!entHs contin%e! sta' in o((ice ,o%l! &re9%!ice t$e case (ile! against $im. 2$e Omb%!sman can im&ose t$e GDmont$ &reventive s%s&ension to all &%blic o((icials ,$et$er elective or a&&ointive ,$o are %n!er investigation. @&on t$e ot$er $an! in im&osing t$e s$orter &erio! o( si4t' ;G5< !a's o( &reventive s%s&ension &rescribe! in t$e LGC o( 1881 on an elective local o((icial ;at an' time a(ter t$e iss%es are 9oine!< it ,o%l! be eno%g$ t$at ;a< t$ere is reasonable gro%n! to believe t$at t$e res&on!ent $as committe! t$e act or acts com&laine! o( ;b< t$e evi!ence o( c%l&abilit' is strong ;c< t$e gravit' o( t$e o((ense so ,arrants or ;!< t$e contin%ance in o((ice o( t$e res&on!ent co%l! in(l%ence t$e ,itnesses or &ose a t$reat to t$e sa(et' an! integrit' o( t$e recor!s an! ot$er evi!ence. 6ON &etitioner committe! grave ab%se o( !iscretion ,$en $e ca%se! t$e iss%ance o( t$e &reventive s%s&ension or!er ,it$o%t an' $earing. 2$e recor!s reveal t$at &etitioner iss%e! t$e or!er o( &reventive s%s&ension a(ter t$e (iling ;a< b' res&on!ent o((icials o( t$eir o&&osition on t$e motion (or &reventive s%s&ension an! ;b< b' Ma'or O%ano o( $is memoran!%m in com&liance ,it$ t$e !irective o( &etitioner. Be t$at as it
/.
/.
/18

ma' ,e $ave $ereto(ore $el! t$at not being in t$e nat%re o( a &enalt' a &reventive s%s&ension can be !ecree! on an o((icial %n!er investigation a(ter c$arges are bro%g$t an! even be(ore t$e c$arges are $ear!. Nat%rall' s%c$ a &reventive s%s&ension ,o%l! occ%r &rior to an' (in!ing o( g%ilt or innocence. *n connection ,it$ t$e s%s&ension o( &etitioner be(ore $e co%l! (ile $is ans,er to t$e a!ministrative com&laint s%((ice it to sa' t$at t$e s%s&ension ,as not a &%nis$ment or &enalt' (or t$e acts o( !is$onest' an! miscon!%ct in o((ice b%t onl' as a &reventive meas%re. )%s&ension is a &reliminar' ste& in an a!ministrative investigation. *( a(ter s%c$ investigation t$e c$arges are establis$e! an! t$e &erson investigate! is (o%n! g%ilt' o( acts ,arranting $is removal t$en $e is remove! or !ismisse!. 2$is is t$e &enalt'. 2$ere is t$ere(ore not$ing im&ro&er in s%s&en!ing an o((icer &en!ing $is investigation an! be(ore t$e c$arges against $im are $ear! an! be given an o&&ort%nit' to &rove $is innocence. #(ter a care(%l an! $onest scr%tin' o( t$e evi!ence s%bmitte! on recor! at t$is stage it is t$e $ol!ing o( t$is o((ice t$at t$e evi!ence o( g%ilt against t$e res&on!ents in t$e instant case is strong. 2$ere is no .%estion t$at t$e c$arge against t$e res&on!ents involves !is$onest' or gross miscon!%ct ,$ic$ ,o%l! ,arrant t$eir removal (rom t$e service an! t$ere is no gainsa'ing t$e (act t$at t$e c$arge (or (alsi(ication o( veritable !oc%ments li+e cit' or!inances are ver' serio%s c$arges t$at a((ect t$e ver' (o%n!ations o( !%l' establis$e! re&resentative governments. Finall' it is li+e,ise t$e $ol!ing o( t$is o((ice at t$is stage t$at t$e contin%e! sta' in o((ice o( res&on!ents ma' &re9%!ice t$e 9%!icio%s investigation an! resol%tion o( t$e instant case. 6ON res&on!ent o((icialHs &etition (or &ro$ibition being an a&&lication (or reme!' against t$e (in!ings o( &etitioner containe! in $is /1 )e&tember 188/ or!er s$o%l! not $ave been entertaine! b' t$e trial co%rt. 2$e &roscri&tion in )ection 10 o( -.#. No. G775 rea!s: )ec. 10. -estrictions. S No ,rit o( in9%nction s$all be iss%e! b' an' co%rt to !ela' an investigation being con!%cte! b' t$e Omb%!sman %n!er t$is #ct %nless t$ere is a &rima (acie evi!ence t$at t$e s%b9ect matter o( t$e investigation is o%tsi!e t$e 9%ris!iction o( t$e O((ice o( t$e Omb%!sman. No co%rt s$all $ear an' a&&eal or a&&lication (or reme!' against t$e !ecision or (in!ings o( t$e Omb%!sman e4ce&t t$e )%&reme Co%rt on &%re .%estion o( la,. )ection /7 o( t$e la, ,$ic$ &rescribes a !irect reco%rse to t$is Co%rt on matters involving or!ers arising (rom a!ministrative !isci&linar' cases originating (rom t$e O((ice o( t$e Omb%!smanA t$%s: *n all a!ministrative !isci&linar' cases or!ers !irectives or !ecisions o( t$e O((ice o( t$e Omb%!sman ma' be a&&eale! to t$e )%&reme Co%rt b' (iling a &etition (or certiorari ,it$in ten ;15< !a's (rom recei&t o( t$e ,ritten notice o( t$e or!er !irective or !ecision or !enial o( t$e motion (or reconsi!eration in accor!ance ,it$ -%le 0C o( t$e -%les o( Co%rt. (alalima v. Guingona /supra- see p. 0D51 Grego v. COM%L%C Facts: On October 11 1881 Basco ,as remove! (rom $is &osition as De&%t' )$eri(( b' no less t$an t$is Co%rt %&on a (in!ing o( serio%s miscon!%ct in an a!ministrative com&laint lo!ge! b' a certain Nena 2or!esillas. )%bse.%entl' Basco ran as a can!i!ate (or Co%ncilor in t$e )econ! District o( t$e Cit' o( Manila !%ring t$e 7an%ar' 18 1888 local elections. He ,on an! accor!ingl' ass%me! o((ice. #(ter $is term Basco so%g$t reDelection in t$e Ma' 11 188/ s'nc$roniBe! national elections. #gain $e s%ccee!e! in $is bi! an! $e ,as electe! as one o( t$e si4 ;G< Cit' Co%ncilors. Ho,ever $is victor' t$is time !i! not remain %nc$allenge!. *n t$e mi!st o( $is s%ccess(%l reDelection $e (o%n! $imsel( besiege! b' la,s%its o( $is o&&onents in t$e &olls ,$o ,ante! to !islo!ge $im (rom $is &osition. #ll t$ese c$allenges ,ere $o,ever !ismisse! t$%s &aving t$e ,a' (or BascoHs contin%e! sta' in o((ice. Des&ite t$e o!!s &revio%sl' enco%ntere! Basco remaine! %n!a%nte! an! ran again (or co%ncilor in t$e Ma' 8 188C local elections see+ing a t$ir! an! (inal term. Once again $e beat t$e o!!s b' emerging si4t$ in a battle (or si4 co%ncilor seats. #s in t$e &ast $o,ever $is rig$t to o((ice ,as again conteste!. On Ma' 11 188C &etitioner Grego claiming to be a registere! voter o( =recinct No. 8GG District ** Cit' o( Manila (ile! ,it$ t$e COM3L3C a &etition (or !is.%ali(ication &ra'ing (or BascoHs !is.%ali(ication (or t$e s%s&ension o( $is &roclamation an! (or t$e !eclaration o( -om%al!o ). Maranan as t$e si4t$ !%l' electe! Co%ncilor o(
/.
/05

ManilaHs )econ! District. On t$e same !a' t$e C$airman o( t$e Manila Cit' Boar! o( Canvassers ;BOC< ,as !%l' (%rnis$e! ,it$ a co&' o( t$e &etition. 2$e ot$er members o( t$e BOC learne! abo%t t$is &etition onl' t,o !a's later. 2$e COM3L3C con!%cte! a $earing o( t$e case on Ma' 10 188C ,$ere it or!ere! t$e &arties to s%bmit sim%ltaneo%sl' t$eir res&ective memoran!a. Be(ore t$e &arties co%l! com&l' ,it$ t$is !irective $o,ever t$e Manila Cit' BOC &roclaime! Basco on Ma' 17 188C as a !%l' electe! co%ncilor (or t$e )econ! District o( Manila &lacing si4t$ among several can!i!ates ,$o vie! (or t$e seats. Basco imme!iatel' too+ $is oat$ o( o((ice be(ore t$e Honorable Ma. -%b' Bit$aoDCamarista =resi!ing 7%!ge Metro&olitan 2rial Co%rt Branc$ * Manila. *n vie, o( s%c$ &roclamation &etitioner lost no time in (iling an @rgent Motion see+ing to ann%l ,$at $e consi!ere! to be an illegal an! $ast' &roclamation ma!e on Ma' 17 188C b' t$e Manila Cit' BOC. He reiterate! BascoHs !is.%ali(ication an! &ra'e! ane, t$at can!i!ate -om%al!o ). Maranan be !eclare! t$e ,inner. #s e4&ecte! Basco co%ntere! sai! motion b' (iling $is @rgent O&&osition to: @rgent Motion ;,it$ -eservation to )%bmit #ns,er an!?or Motion to Dismiss #gainst *nstant =etition (or Dis.%ali(ication ,it$ 2em&orar' -estraining Or!er<. On 7%ne C 188C Basco (ile! $is Motion to Dismiss )erving #s #ns,er &%rs%ant to t$e reservation $e ma!e earlier. #(ter t$e &artiesH res&ective memoran!a $a! been (ile! t$e COM3L3CHs First Division resolve! to !ismiss t$e &etition (or !is.%ali(ication on October G 188C r%ling t$at "t$e a!ministrative &enalt' im&ose! b' t$e )%&reme Co%rt on res&on!ent Basco on October 11 1881 ,as ,i&e! a,a' an! con!one! b' t$e electorate ,$ic$ electe! $im" an! t$at on acco%nt o( BascoHs &roclamation on Ma' 17 188C as t$e si4t$ !%l' electe! co%ncilor o( t$e )econ! District o( Manila "t$e &etition ,o%l! no longer be viable." M- !enie! b' COM3L3C en banc. Hence t$is &etition. *ss%es: 1. 6ON )ection 05 ;b< o( -e&%blic #ct No. 71G5 a&&l' retroactivel' to t$ose remove! (rom o((ice be(ore it too+ e((ect on 7an%ar' 1 188/ )3C. 05. Dis.%ali(ications. S 2$e (ollo,ing &ersons are !is.%ali(ie! (rom r%nning (or an' elective local &osition ;b< 2$ose remove! (rom o((ice as a res%lt o( an a!ministrative case. O%r re(%sal to give retroactive a&&lication to t$e &rovision o( )ection 05 ;b< is alrea!' a settle! iss%e an! t$ere e4ist no com&elling reasons (or %s to !e&art t$ere(rom. 6ellDsettle! is t$e &rinci&le t$at ,$ile t$e Legislat%re $as t$e &o,er to &ass retroactive la,s ,$ic$ !o not im&air t$e obligation o( contracts or a((ect in9%rio%sl' veste! rig$ts it is e.%all' tr%e t$at stat%tes are not to be constr%e! as inten!e! to $ave a retroactive e((ect so as to a((ect &en!ing &rocee!ings %nless s%c$ intent is e4&ressl' !eclare! or clearl' an! necessaril' im&lie! (rom t$e lang%age o( t$e enactment. 2$ere is no &rovision in t$e stat%te ,$ic$ ,o%l! clearl' in!icate t$at t$e same o&erates retroactivel'. 6ON &rivate res&on!entHs election to o((ice as Cit' Co%ncilor o( Manila in t$e 1888 188/ an! 188C elections ,i&e a,a' an! con!one t$e a!ministrative &enalt' against $im t$%s restoring $is eligibilit' (or &%blic o((ice. #t (irst glance t$ere seems to be a &rima (acie semblance o( merit to &etitionerHs arg%ment. Ho,ever t$e iss%e o( ,$et$er or not BascoHs tri&le election to o((ice c%re! $is allege! ineligibilit' is act%all' besi!e t$e &oint beca%se t$e arg%ment &rocee!s on t$e ass%m&tion t$at $e ,as in t$e (irst &lace !is.%ali(ie! ,$en $e ran in t$e t$ree &revio%s elections. 2$is ass%m&tion o( co%rse is %ntenable consi!ering t$at Basco ,as NO2 s%b9ect to an' !is.%ali(ication at all %n!er )ection 05 ;b< o( t$e LGC ,$ic$ as ,e sai! earlier a&&lies onl' to t$ose remove! (rom o((ice on or a(ter 7an%ar' 1 188/. *n vie, o( t$e irrelevance o( t$e iss%e &ose! b' &etitioner t$ere is no more reason (or t$e Co%rt to still !,ell on t$e matter at lengt$. 6ON Basco circ%mvente! t$e &ro$ibition in 2or!esillas against reinstatement to an' &osition in t$e national or local government incl%!ing its agencies an! instr%mentalities as ,ell as governmentDo,ne! or controlle! cor&orations. 2$e 2or!esillas !ecision !i! not bar Basco (rom r%nning (or an' elective &osition. #s can be gleane! (rom t$e !ecretal &ortion o( t$e sai! !ecision t$e Co%rt co%c$e! t$e &ro$ibition in t$is ,ise: *n t$is regar! &artic%lar attention is !irecte! to t$e %se o( t$e term "reinstatement. " @n!er t$e (ormer Civil )ervice Decree 1G t$e la, a&&licable at t$e time Basco a &%blic o((icer ,as a!ministrativel' !ismisse! (rom o((ice t$e term "reinstatement" $a! a tec$nical meaning re(erring onl' to an a&&ointive &osition. 2$%s: )3C. /0. =ersonnel #ctions. ;!< -einstatement. S #n' &erson ,$o $as been
/.
/.
/01

&ermanentl' #==O*N23D to a &osition in t$e career service an! ,$o $as t$ro%g$ no !elin.%enc' or miscon!%ct been se&arate! t$ere(rom ma' be reinstate! to a &osition in t$e same level (or ,$ic$ $e is .%ali(ie!. 2$e -%les on =ersonnel #ctions an! =olicies iss%e! b' t$e Civil )ervice Commission on November 15 187C 17 &rovi!es a clearer !e(inition. *t rea!s: )3C. 7. -einstatement is t$e -3#==O*N2M3N2 o( a &erson ,$o ,as &revio%sl' se&arate! (rom t$e service t$ro%g$ no !elin.%enc' or miscon!%ct on $is &art (rom a &osition in t$e career service to ,$ic$ $e ,as &ermanentl' a&&ointe! to a &osition (or ,$ic$ $e is .%ali(ie!." *n lig$t o( t$ese !e(initions t$ere is t$ere(ore no basis (or $ol!ing t$at Basco is li+e,ise barre! (rom r%nning (or an elective &osition inasm%c$ as ,$at is contem&late! b' t$e &ro$ibition in 2or!esillas is reinstatement to an a&&ointive &osition. 6ON &rivate res&on!entHs &roclamation as si4t$ ,inning can!i!ate on Ma' 17 188C ,$ile t$e !is.%ali(ication case ,as still &en!ing consi!eration b' COM3L3C voi! ab initio. )ection /5 &aragra&$ ;i< o( -e&. #ct 71GG rea!s: ;i< 2$e boar! o( canvassers s$all not &roclaim an' can!i!ate as ,inner %nless a%t$oriBe! b' t$e Commission a(ter t$e latter $as r%le! on t$e ob9ections bro%g$t to it on a&&eal b' t$e losing &art'. #n' &roclamation ma!e in violation $ereo( s$all be voi! ab initio %nless t$e conteste! ret%rns ,ill not a!versel' a((ect t$e res%lts o( t$e election. 2$e ina&&licabilit' o( t$e abovementione! &rovision to t$e &resent case is ver' m%c$ &atent on its (ace consi!ering t$at t$e same re(ers onl' to a voi! &roclamation in relation to conteste! ret%rns an! NO2 to conteste! .%ali(ications o( a can!i!ate. )ection G o( -e&. #ct GG0G ,$ic$ states: 3((ect o( Dis.%ali(ication Case. S #n' can!i!ate ,$o $as been !eclare! b' (inal 9%!gment to be !is.%ali(ie! s$all not be vote! (or an! t$e votes cast (or $im s$all not be co%nte!. *( (or an' reason a can!i!ate is not !eclare! b' (inal 9%!gment be(ore an election to be !is.%ali(ie! an! $e is vote! (or an! receives t$e ,inning n%mber o( votes in s%c$ election t$e Co%rt or Commission s$all contin%e ,it$ t$e trial an! $earing o( t$e action in.%ir' or &rotest an! %&on motion o( t$e com&lainant or an' intervenor ma' !%ring t$e &en!enc' t$ereo( or!er t$e s%s&ension o( t$e &roclamation o( s%c$ can!i!ate ,$enever t$e evi!ence o( $is g%ilt is strong." 2$is &rovision $o,ever !oes not s%&&ort &etitionerHs contention t$at t$e COM3L3C or more &ro&erl' s&ea+ing t$e Manila Cit' BOC s$o%l! $ave s%s&en!e! t$e &roclamation. 2$e %se o( t$e ,or! "ma'" in!icates t$at t$e s%s&ension o( a &roclamation is merel' !irector' an! &ermissive in nat%re an! o&erates to con(er !iscretion. 6$at is merel' ma!e man!ator' accor!ing to t$e &rovision itsel( is t$e contin%ation o( t$e trial an! $earing o( t$e action in.%ir' or &rotest. 2$%s in vie, o( t$is !iscretion grante! to t$e COM3L3C t$e .%estion o( ,$et$er or not evi!ence o( g%ilt is so strong as to ,arrant s%s&ension o( &roclamation m%st be le(t (or its o,n !etermination an! t$e Co%rt cannot inter(ere t$ere,it$ an! s%bstit%te its o,n 9%!gment %nless s%c$ !iscretion $as been e4ercise! ,$imsicall' an! ca&ricio%sl'. 2$e COM3L3C as an a!ministrative agenc' an! a s&ecialiBe! constit%tional bo!' c$arge! ,it$ t$e en(orcement an! a!ministration o( all la,s an! reg%lations relative to t$e con!%ct o( an election &lebiscite initiative re(eren!%m an! recall $as more t$an eno%g$ e4&ertise in its (iel! t$at its (in!ings or concl%sions are generall' res&ecte! an! even given (inalit'. 2$e COM3L3C $as not (o%n! an' gro%n! to s%s&en! t$e &roclamation an! t$e recor!s li+e,ise (ail to s$o, an' so as to ,arrant a !i((erent concl%sion (rom t$is Co%rt. Hence t$ere is no am&le 9%sti(ication to $ol! t$at t$e COM3L3C gravel' ab%se! its !iscretion. )ection C -%le /C o( t$e COM3L3C -%les o( =roce!%re /C states t$at: 3((ect o( &etition i( %nresolve! be(ore com&letion o( canvass. S . . . ;H<is &roclamation s$all be s%s&en!e! not,it$stan!ing t$e (act t$at $e receive! t$e ,inning n%mber o( votes in s%c$ election. Ho,ever being merel' an im&lementing r%le t$e same m%st not overri!e b%t instea! remain consistent ,it$ an! in $armon' ,it$ t$e la, it see+s to a&&l' an! im&lement. #!ministrative r%les an! reg%lations are inten!e! to carr' o%t neit$er to s%&&lant nor to mo!i(' t$e la,. Moreover t$ere is no reason ,$' t$e Manila Cit' BOC s$o%l! not $ave &roclaime! Basco as t$e si4t$ ,inning Cit' Co%ncilor. #bsent an' !etermination o( irreg%larit' in t$e
/.
/0/

election ret%rns as ,ell as an or!er en9oining t$e canvassing an! &roclamation o( t$e ,inner it is a man!ator' an! ministerial !%t' o( t$e Boar! o( Canvassers concerne! to co%nt t$e votes base! on s%c$ ret%rns an! !eclare t$e res%lt. 2$is $as been t$e r%le as earl' as in t$e case o( DiBon v. =rovincial Boar! o( Canvassers o( Lag%na /8 ,$ere ,e clari(ie! t$e nat%re o( t$e (%nctions o( t$e Boar! o( Canvassers viB.: "2$e sim&le &%r&ose an! !%t' o( t$e canvassing boar! is to ascertain an! !eclare t$e a&&arent res%lt o( t$e voting. #ll ot$er .%estions are to be trie! be(ore t$e co%rt or ot$er trib%nal (or contesting elections or in .%o ,arranto &rocee!ings. " Finall' t$e cases o( D%rem!es Benito an! #g%am s%&ra cite! b' &etitioner are all irrelevant an! ina&&licable to t$e (act%al circ%mstances at bar an! serve no ot$er &%r&ose t$an to m%!!le t$e real iss%e. 2$ese t$ree cases !o not in an' manner re(er to voi! &roclamations res%lting (rom t$e mere &en!enc' o( a !is.%ali(ication case. *n D%rem!es t$e &roclamation ,as !eeme! voi! ab initio beca%se t$e same ,as ma!e contrar' to t$e &rovisions o( t$e Omnib%s 3lection Co!e regar!ing t$e s%s&ension o( &roclamation in cases o( conteste! election ret%rns. *n Benito t$e &roclamation o( &etitioner Benito ,as ren!ere! ine((ective !%e to t$e Boar! o( CanvassersH violation o( its ministerial !%t' to &roclaim t$e can!i!ate receiving t$e $ig$est n%mber o( votes an! &ave t$e ,a' to s%ccession in o((ice. *n sai! case t$e can!i!ate receiving t$e $ig$est n%mber o( votes (or t$e ma'oralt' &osition !ie! b%t t$e Boar! o( Canvassers instea! o( &roclaiming t$e !ecease! can!i!ate ,inner !eclare! Benito a mere secon!D&lacer t$e ma'or. Lastl' in #g%am t$e n%lli(ication o( t$e &roclamation &rocee!e! (rom t$e (act t$at it ,as base! onl' on a!vance! co&ies o( election ret%rns ,$ic$ %n!er t$e la, t$en &revailing co%l! not $ave been a &ro&er an! legal basis (or &roclamation. 6ON -om%al!o ). Maranan a sevent$ &lacer be legall' !eclare! a ,inning can!i!ate. Obvio%sl' $e ma' not be !eclare! a ,inner. *n t$e (irst &lace Basco ,as a !%l' .%ali(ie! can!i!ate &%rs%ant to o%r !is.%isition above. F%rt$ermore $e clearl' receive! t$e ,inning n%mber o( votes ,$ic$ &%t $im in si4t$ &lace. 2$e e4ce&tion is &re!icate! on t$e conc%rrence o( t,o ass%m&tions namel': ;1< t$e one ,$o obtaine! t$e $ig$est n%mber o( votes is !is.%ali(ie!A an! ;/< t$e electorate is (%ll' a,are in (act an! in la, o( a can!i!ateHs !is.%ali(ication so as to bring s%c$ a,areness ,it$in t$e realm o( notoriet' b%t ,o%l! nonet$eless cast t$eir votes in (avor o( t$e ineligible can!i!ate. Bot$ ass%m&tions $o,ever are absent in t$is case. =etitionerHs allegation t$at Basco ,as ,ellD+no,n to $ave been !is.%ali(ie! in t$e small comm%nit' ,$ere $e ran as a can!i!ate is &%rel' s&ec%lative an! con9ect%ral %ns%&&orte! as it is b' an' convincing (acts o( recor! to s$o, notoriet' o( $is allege! !is.%ali(ication. +oson v. %xecutive (ecretar# 'orres Facts: On )e&tember 17 188G &rivate res&on!ents (ile! ,it$ t$e O((ice o( t$e =resi!ent a letterDcom&laint !ate! )e&tember 11 1887 c$arging &etitioner ,it$ grave miscon!%ct an! ab%se o( a%t$orit'. =rivate res&on!ents allege! t$at in t$e morning o( )e&tember 1/ 188G t$e' ,ere at t$e session $all o( t$e &rovincial ca&itol (or a sc$e!%le! session o( t$e )angg%niang =anlala,igan ,$en &etitioner belligerentl' barge! into t$e HallA &etitioner angril' +ic+e! t$e !oor an! c$airs in t$e Hall an! %ttere! t$reatening ,or!s at t$emA close be$in! &etitioner ,ere several men ,it$ long an! s$ort (irearms ,$o encircle! t$e area. =rivate res&on!ents claim t$at t$is inci!ent ,as an o((s$oot o( t$eir resistance to a &en!ing legislative meas%re s%&&orte! b' &etitioner t$at t$e &rovince o( N%eva 3ci9a obtain a loan o( =1C5 million (rom t$e =$ili&&ine National Ban+A t$at &etitionerHs acts ,ere inten!e! to $arass t$em into a&&roving t$is loanA t$at (ort%natel' no session o( t$e )angg%niang =anlala,igan ,as $el! t$at !a' (or lac+ o( .%or%m an! t$e &ro&ose! legislative meas%re ,as not consi!ere!A t$at &rivate res&on!ents o&&ose! t$e loan beca%se t$e &rovince o( N%eva 3ci9a $a! an %nli.%i!ate! obligation o( more t$an =75 million inc%rre! ,it$o%t &rior a%t$oriBation (rom t$e )angg%niang =anlala,iganA t$at t$e &rovincial b%!get o((icer an! treas%rer $a! earlier !isclose! t$at t$e &rovince co%l! not a((or! to contract anot$er obligationA t$at &etitionerHs act o( barging in an! intimi!ating &rivate res&on!ents ,as a serio%s ins%lt to t$e integrit' an! in!e&en!ence o( t$e )angg%niang =anlala,iganA an! t$at t$e &resence o( $is &rivate arm' &ose! grave !anger to
/.
/01

&rivate res&on!entsH lives an! sa(et'. =rivate res&on!ents &ra'e! (or t$e s%s&ension or removal o( &etitionerA (or an emergenc' a%!it o( t$e &rovincial treas%r' o( N%eva 3ci9aA an! (or t$e revie, o( t$e &ro&ose! loan in lig$t o( t$e (inancial con!ition o( t$e &rovince. =resi!ent -amos note! t$at t$e sit%ation o( "1/ )e& at t$e )ession Hall " i.e. t$e re(%sal o( t$e members o( t$e )angg%niang =anlala,igan to a&&rove t$e &ro&ose! loan !i! not a&&ear to 9%sti(' "t$e %se o( (orce intimi!ation or arme! (ollo,ers." He t$%s instr%cte! t$e t$en )ecretar' o( t$e *nterior an! Local Governments ;)*LG< -obert Barbers to "UtVa+e a&&ro&riate &reem&tive an! investigative actions " b%t to "UbVrea+ not t$e &eace." #cting %&on t$e instr%ctions o( t$e =resi!ent )ecretar' Barbers noti(ie! &etitioner o( t$e case against $im an! attac$e! to t$e notice a co&' o( t$e com&laint an! its anne4es. *n t$e same notice )ecretar' Barbers !irecte! &etitioner "to s%bmit U$isV veri(ie!?s,orn ans,er t$ereto not a motion to !ismiss toget$er ,it$ s%c$ !oc%mentar' evi!ence t$at U$eV $as in s%&&ort t$ereo( ,it$in (i(teen ;1C< !a's (rom recei&t." *mme!iatel' t$erea(ter )ecretar' Barbers &rocee!e! to N%eva 3ci9a an! s%mmone! &etitioner an! &rivate res&on!ents to a con(erence to settle t$e controvers'. 2$e &arties entere! into an agreement ,$ereb' &etitioner &romise! to maintain &eace an! or!er in t$e &rovince ,$ile &rivate res&on!ents &romise! to re(rain (rom (iling cases t$at ,o%l! a!versel' a((ect t$eir &eace(%l coDe4istence. 2$e &eace agreement ,as not res&ecte! b' t$e &arties an! t$e &rivate res&on!ents reiterate! t$eir letterDcom&laint. =etitioner ,as again or!ere! to (ile $is ans,er to t$e letterDcom&laint ,it$in (i(teen !a's (rom recei&t. =etitioner receive! a co&' o( t$is or!er on November 11 188G. On #&ril // 1887 @n!ersecretar' Man%el )anc$eB t$en #cting )ecretar' o( t$e D*LG iss%e! an or!er !eclaring &etitioner in !e(a%lt an! to $ave ,aive! $is rig$t to &resent evi!ence. =rivate res&on!ents ,ere or!ere! to &resent t$eir evi!ence e4D&arte. 2,o !a's later on #&ril /0 1887 t$e la, (irm o( =a!illa 7imeneB Mintanar P #s%ncion re&resenting &etitioner (ile! ,it$ t$e D*LG an "3ntr' o( #&&earance ,it$ Motion (or 2ime to File #ns,er #! Ca%telam." =etitioner receive! a co&' o( t$e or!er o( !e(a%lt on Ma' / 1887. 2$ro%g$ co%nsel $e move! (or reconsi!eration. On Ma' 18 1887 @n!ersecretar' )anc$eB reconsi!ere! t$e or!er o( !e(a%lt in t$e interest o( 9%stice. He note! t$e a&&earance o( &etitionerHs co%nsel an! gave &etitioner "(or t$e last time" (i(teen ;1C< !a's (rom recei&t to (ile $is ans,er. On 7%ne /1 1887 @n!ersecretar' )anc$eB iss%e! an or!er stating t$at &etitionerHs co%nsel ,$ose o((ice is in Manila s$o%l! $ave receive! a co&' o( )ince &etitioner still (aile! to (ile $is ans,er $e ,as !eeme! to $ave ,aive! $is rig$t to &resent evi!ence in $is be$al(. @n!ersecretar' )anc$eB reinstate! t$e or!er o( !e(a%lt an! !irecte! &rivate res&on!ents to &resent t$eir evi!ence e4D&arte on 7%l' 1C 1887. 2$e (ollo,ing !a' 7%ne /0 1887 &etitioner t$ro%g$ co%nsel (ile! a "Motion to Dismiss." =etitioner allege! t$at t$e letterDcom&laint ,as not veri(ie! on t$e !a' it ,as (ile! ,it$ t$e O((ice o( t$e =resi!entA an! t$at t$e D*LG $a! no 9%ris!iction over t$e case an! no a%t$orit' to re.%ire $im to ans,er t$e com&laint. On 7%l' 0 1887 &etitioner (ile! an "@rgent 34D=arte Motion (or -econsi!eration" o( t$e or!er o( 7%ne /1 1887 reinstating t$e or!er o( !e(a%lt. =etitioner also &ra'e! t$at t$e $earing on t$e merits o( t$e case be $el! in abe'ance %ntil a(ter t$e "Motion to Dismiss" s$all $ave been resolve!. On 7%l' 11 1887 on recommen!ation o( )ecretar' Barbers 34ec%tive )ecretar' -%ben 2orres iss%e! an or!er b' a%t$orit' o( t$e =resi!ent &lacing &etitioner %n!er &reventive s%s&ension (or si4t' ;G5< !a's &en!ing investigation o( t$e c$arges against $im. )ecretar' Barbers !irecte! t$e =$ili&&ine National =olice to assist in t$e im&lementation o( t$e or!er o( &reventive s%s&ension. *n &etitionerHs stea! )ecretar' Barbers !esignate! KiceDGovernor Oscar 2inio as #cting Governor %ntil s%c$ time as &etitionerHs tem&orar' legal inca&acit' s$all $ave cease! to e4ist. Fort$,it$ &etitioner (ile! a &etition (or certiorari an! &ro$ibition ,it$ t$e Co%rt o( #&&eals c$allenging t$e or!er o( &reventive s%s&ension an! t$e or!er o( !e(a%lt. Mean,$ile t$e &rocee!ings be(ore t$e D*LG contin%e!. On #%g%st /5 1887 @n!ersecretar' )anc$eB iss%e! an or!er !en'ing &etitionerHs "Motion to Dismiss" an! "@rgent 34D=arte Motion (or -econsi!eration." *n t$e same or!er $e re.%ire! t$e &arties to s%bmit t$eir &osition &a&ers ,it$in an ine4ten!ible &erio! o( ten !a's (rom recei&t a(ter ,$ic$ t$e case s$all be !eeme! s%bmitte! (or resol%tion. On #%g%st /7 1887 &etitioner (ile! ,it$ t$e D*LG a "Motion to Li(t Or!er o( =reventive )%s&ension." On )e&tember 15 1887 &etitioner (ollo,e! t$is ,it$ a "Motion to Li(t De(a%lt Or!er an! #!mit #ns,er #! Ca%telam."U/1V #ttac$e! to t$e motion ,as t$e "#ns,er #! Ca%telam"U//V an! s,orn statements o( $is ,itnesses. On t$e ot$er $an! com&lainants ;&rivate res&on!ents $erein< mani(este! t$at t$e' ,ere s%bmitting t$e case (or !ecision base! on t$e recor!s t$e com&laint an! a((i!avits o( t$eir ,itnesses. *n $is #ns,er #! Ca%telam &etitioner allege! t$at in t$e morning o( )e&tember 1/ 188G ,$ile $e ,as at $is !istrict o((ice in t$e to,n o( M%noB $e receive! a &$one call (rom )angg%niang
/00

=anlala,igan member 7ose !el M%n!o. Del M%n!o ,$o belonge! to &etitionerHs &olitical &art' in(orme! $im t$at KiceDGovernor 2inio ,as enrage! at t$e members o( t$e )angg%niang =anlala,igan ,$o ,ere in &etitionerHs &art' beca%se t$e' re(%se! to &lace on t$e agen!a t$e rati(ication o( t$e &ro&ose! =1C5 million loan o( t$e &rovince. =etitioner re&aire! to t$e &rovincial ca&itol to a!vise $is &art'Dmates on t$eir &roblem an! at t$e same time atten! to $is o((icial (%nctions. @&on arrival $e ,ent to t$e )ession Hall an! as+e! t$e members &resent ,$ere KiceDGovernor 2inio ,as. Ho,ever ,it$o%t ,aiting (or t$eir re&l' $e le(t t$e Hall an! &rocee!e! to $is o((ice. =etitioner claime! t$at t$ere ,as not$ing in $is con!%ct t$at t$reatene! t$e members o( t$e )angg%niang =anlala,igan or ca%se! alarm to t$e em&lo'ees. He sai! t$at li+e KiceDGovernor 2inio $e ,as al,a's accom&anie! b' $is o((icial sec%rit' escorts ,$enever $e re&orte! (or ,or+. He also allege! t$at t$e 9oint a((i!avit o( 3lnora 3scombien an! 7ac.%eline 7ane =ereB ,as (alse. 3scombien ,as &%r&orte!l' not insi!e t$e session $all !%ring t$e inci!ent b%t ,as at $er !es+ at t$e o((ice an! co%l! not in an' ,a' $ave seen &etitioner in t$e $all. 2o attest to t$e tr%t$ o( $is allegations &etitioner s%bmitte! t$ree ;1< 9oint a((i!avits DD t,o ;/< a((i!avits e4ec%te! b' si4 ;G< an! ten ;15< em&lo'ees res&ectivel' o( t$e &rovincial government an! a t$ir! b' (o%r members o( t$e )angg%niang =anlala,igan. On )e&tember 11 1887 &etitioner (ile! an "@rgent Motion (or -econsi!eration" o( t$e or!er o( #%g%st /5 1887 !en'ing $is motion to !ismiss. 2$e "@rgent Motion (or -econsi!eration" ,as re9ecte! b' @n!ersecretar' )anc$eB on October 8 1887. @n!ersecretar' )anc$eB $o,ever grante! t$e "Motion to Li(t De(a%lt Or!er an! to #!mit #ns,er #! Ca%telam" an! a!mitte! t$e "#ns,er #! Ca%telam" as &etitionerHs &osition &a&er &%rs%ant to t$e or!er o( #%g%st /5 1887. On October 1C 1887 &etitioner (ile! a "Motion to Con!%ct Formal *nvestigation." =etitioner &ra'e! t$at a (ormal investigation o( $is case be con!%cte! &%rs%ant to t$e &rovisions o( t$e LGC o( 1881 an! -%le 7 o( #!ministrative Or!er No. /1A an! t$at t$is be $el! at t$e &rovince o( N%eva 3ci9a.U/GV On October /8 1887 &etitioner s%bmitte! a "Mani(estation an! Motion" be(ore t$e D*LG reiterating $is rig$t to a (ormal investigation. *n t$e meantime on October /0 1887 t$e Co%rt o( #&&eals !ismisse! &etitionerHs &etition. *ss%es: 1. 6ON t$e r%les o( &roce!%re an! evi!ence s$o%l! be strictl' a&&lie! in t$e a!ministrative &rocee!ings. #n a!ministrative com&laint against an erring elective o((icial m%st be veri(ie! an! (ile! ,it$ t$e &ro&er government o((ice. # com&laint against an elective &rovincial or cit' o((icial m%st be (ile! ,it$ t$e O((ice o( t$e =resi!ent. # com&laint against an elective m%nici&al o((icial m%st be (ile! ,it$ t$e )angg%niang =anlala,igan ,$ile t$at o( a baranga' o((icial m%st be (ile! be(ore t$e )angg%niang =anl%ngso! or )angg%niang Ba'an. *n t$e instant case &etitioner 7oson is an elective o((icial o( t$e &rovince o( N%eva 3ci9a. 2$e letterDcom&laint against $im ,as t$ere(ore &ro&erl' (ile! ,it$ t$e O((ice o( t$e =resi!ent. #ccor!ing to &etitioner $o,ever t$e letterD com&laint (aile! to con(orm ,it$ t$e (ormal re.%irements set b' t$e Co!e. He alleges t$at t$e com&laint ,as not veri(ie! b' &rivate res&on!ents an! ,as not s%&&orte! b' t$e 9oint a((i!avit o( t$e t,o ,itnesses name! t$ereinA t$at &rivate res&on!ents later realiBe! t$ese !e(ects an! s%rre&titio%sl' inserte! t$e veri(ication an! s,orn statement ,$ile t$e com&laint ,as still &en!ing ,it$ t$e O((ice o( t$e =resi!ent.U18V 2o &rove $is allegations &etitioner s%bmitte!: ;a< t$e s,orn statement o( &rivate res&on!ent )olita C. )antos attesting to t$e allege! (act t$at a(ter t$e letterD com&laint ,as (ile! KiceDGovernor 2inio ma!e $er an! t$e ot$er members o( t$e )angg%niang =anlala,igan sign an a!!itional &age ,$ic$ $e $a! later notariBe!A an! ;b< t$e (act t$at t$e veri(ication o( t$e letterDcom&laint an! t$e 9oint a((i!avit o( t$e ,itnesses !o not in!icate t$e !oc%ment &age or boo+ n%mber o( t$e notarial register o( t$e notar' &%blic be(ore ,$om t$e' ,ere ma!e. 6e (in! no merit in t$e contention o( t$e &etitioner. 2$e absence o( t$e !oc%ment &age or boo+ n%mber o( t$e notarial register o( t$e s%bscribing o((icer is ins%((icient to &rove &etitionerHs claim. 2$e lac+ o( t$ese entries ma' constit%te &roo( o( neglect on t$e &art o( t$e s%bscribing o((icer in com&l'ing ,it$ t$e re.%irements (or notariBation an! &ro&er veri(ication. 2$e' ma' give gro%n!s (or t$e revocation o( $is notarial commission.U05V B%t t$e' !o not in!%bitabl' &rove t$at t$e veri(ication ,as inserte! or intercalate! a(ter t$e letterDcom&laint ,as (ile! ,it$ t$e O((ice o( t$e =resi!ent. Nor is t$e (act o( intercalation s%((icientl' establis$e! b' t$e a((i!avit o( )olita C. )antos. =rivate res&on!ent )antos ,as one o( t$e signatories to t$e
/0C

letterDcom&laint. *n $er a((i!avit s$e &ra'e! t$at s$e be !ro&&e! as one o( t$e com&lainants since s$e $a! 9%st 9oine! t$e &olitical &art' o( &etitioner 7oson. )$e !eci!e! to reveal t$e intercalation beca%se s$e ,as !isill%sione! ,it$ t$e "!irt' tactics" o( KiceDGovernor 2inio to grab &o,er (rom &etitioner 7oson.U01V =rivate res&on!ent )antos cannot in an' ,a' be consi!ere! an %nbiase! ,itness. Her motive an! c$ange o( $eart ren!er $er a((i!avit s%s&ect. #ss%ming nonet$eless t$at t$e letterDcom&laint ,as %nveri(ie! ,$en s%bmitte! to t$e O((ice o( t$e =resi!ent t$e !e(ect ,as not (atal. 2$e re.%irement o( veri(ication ,as !eeme! ,aive! b' t$e =resi!ent $imsel( ,$en $e acte! on t$e com&laint. Keri(ication is a (ormal not 9%ris!ictional re.%isite. Keri(ication is mainl' inten!e! to sec%re an ass%rance t$at t$e allegations t$erein ma!e are !one in goo! (ait$ or are tr%e an! correct an! not mere s&ec%lation. 2$e lac+ o( veri(ication is a mere (ormal !e(ect. 2$e co%rt ma' or!er t$e correction o( t$e &lea!ing i( not veri(ie! or act on t$e %nveri(ie! &lea!ing i( t$e atten!ing circ%mstances are s%c$ t$at a strict com&liance ,it$ t$e r%le ma' be !is&ense! ,it$ in or!er t$at t$e en!s o( 9%stice ma' be serve!. 6ON t$e D*LG )ecretar' $as 9%ris!iction over t$e case. 7%ris!iction over a!ministrative !isci&linar' actions against elective local o((icials is lo!ge! in t,o a%t$orities: t$e Disci&lining #%t$orit' an! t$e *nvestigating #%t$orit'. 2$is is e4&licit (rom #.O. No. /1 to ,it: ")ec. /. Disci&lining #%t$orit'. #ll a!ministrative com&laints !%l' veri(ie! against elective local o((icials mentione! in t$e &rece!ing )ection s$all be acte! %&on b' t$e =resi!ent. 2$e =resi!ent ,$o ma' act t$ro%g$ t$e 34ec%tive )ecretar' s$all $ereina(ter be re(erre! to as t$e Disci&lining #%t$orit'." )ec. 1. *nvestigating #%t$orit'. 2$e )ecretar' o( t$e *nterior an! Local Government is $ereb' !esignate! as t$e *nvestigating #%t$orit'. He ma' constit%te an *nvestigating Committee in t$e De&artment o( t$e *nterior an! Local Government (or t$e &%r&ose.2$e Disci&lining #%t$orit' ma' $o,ever in t$e interest o( t$e service constit%te a )&ecial *nvestigating Committee in lie% o( t$e )ecretar' o( t$e *nterior an! Local Government." =%rs%ant to t$ese &rovisions t$e Disci&lining #%t$orit' is t$e =resi!ent o( t$e =$ili&&ines ,$et$er acting b' $imsel( or t$ro%g$ t$e 34ec%tive )ecretar'. 2$e )ecretar' o( t$e *nterior an! Local Government is t$e *nvestigating #%t$orit' ,$o ma' act b' $imsel( or constit%te an *nvestigating Committee. 2$e )ecretar' o( t$e D*LG $o,ever is not t$e e4cl%sive *nvestigating #%t$orit'. *n lie% o( t$e D*LG )ecretar' t$e Disci&lining #%t$orit' ma' !esignate a )&ecial *nvestigating Committee. 2$e &o,er o( t$e =resi!ent over a!ministrative !isci&linar' cases against elective local o((icials is !erive! (rom $is &o,er o( general s%&ervision over local governments. )ection 0 #rticle J o( t$e 1887 Constit%tion &rovi!es:")ec. 0. 2$e =resi!ent o( t$e =$ili&&ines s$all e4ercise general s%&ervision over local governments. =rovinces ,it$ res&ect to com&onent cities an! m%nici&alities an! cities an! m%nici&alities ,it$ res&ect to com&onent baranga's s$all ens%re t$at t$e acts o( t$eir com&onent %nits are ,it$in t$e sco&e o( t$eir &rescribe! &o,ers an! (%nctions." 2$e &o,er o( s%&ervision means "overseeing or t$e a%t$orit' o( an o((icer to see t$at t$e s%bor!inate o((icers &er(orm t$eir !%ties." *( t$e s%bor!inate o((icers (ail or neglect to (%l(ill t$eir !%ties t$e o((icial ma' ta+e s%c$ action or ste& as &rescribe! b' la, to ma+e t$em &er(orm t$eir !%ties. 2$e =resi!entHs &o,er o( general s%&ervision means no more t$an t$e &o,er o( ens%ring t$at la,s are (ait$(%ll' e4ec%te! or t$at s%bor!inate o((icers act ,it$in t$e la,. )%&ervision is not incom&atible ,it$ !isci&line. #n! t$e &o,er to !isci&line an! ens%re t$at t$e la,s be (ait$(%ll' e4ec%te! m%st be constr%e! to a%t$oriBe t$e =resi!ent to or!er an investigation o( t$e act or con!%ct o( local o((icials ,$en in $is o&inion t$e goo! o( t$e &%blic service so re.%ires. 2$e &o,er to !isci&line evi!entl' incl%!es t$e &o,er to investigate. #s t$e Disci&lining #%t$orit' t$e =resi!ent $as t$e &o,er !erive! (rom t$e Constit%tion itsel( to investigate com&laints against local government o((icials. #. O. No. /1 $o,ever !elegates t$e &o,er to investigate to t$e D*LG or a )&ecial *nvestigating Committee as ma' be constit%te! b' t$e Disci&lining #%t$orit'. 2$is is not %n!%e !elegation contrar' to &etitioner 7osonHs claim. 2$e =resi!ent remains t$e Disci&lining #%t$orit'. 6$at is !elegate! is t$e &o,er to investigate not t$e &o,er to !isci&line.
/.
/0G
Mabelle O. Nebres | Local Governments Case Digests Moreover t$e &o,er o( t$e D*LG to investigate
a!ministrative com&laints is base! on t$e alterDego &rinci&le or t$e !octrine o( .%ali(ie! &olitical agenc'. 2$%s: @n!er t$is !octrine ,$ic$ recogniBes t$e establis$ment o( a single e4ec%tive all e4ec%tive an! a!ministrative organiBations are a!9%ncts o( t$e 34ec%tive De&artment t$e $ea!s o( t$e vario%s e4ec%tive !e&artments are assistants an! agents o( t$e C$ie( 34ec%tive an! e4ce&t in cases ,$ere t$e C$ie( 34ec%tive is re.%ire! b' t$e Constit%tion or la, to act in &erson or t$e e4igencies o( t$e sit%ation !eman! t$at $e act &ersonall' t$e m%lti(ario%s e4ec%tive an! a!ministrative (%nctions o( t$e C$ie( 34ec%tive are &er(orme! b' an! t$ro%g$ t$e e4ec%tive !e&artments an! t$e acts o( t$e )ecretaries o( s%c$ !e&artments &er(orme! an! &rom%lgate! in t$e reg%lar co%rse o( b%siness are %nless !isa&&rove! or re&robate! b' t$e C$ie( 34ec%tive &res%m&tivel' t$e acts o( t$e C$ie( 34ec%tive." 2$is !octrine is corollar' to t$e control &o,er o( t$e =resi!ent.2$e &o,er o( control is &rovi!e! in t$e Constit%tion t$%s: ")ec. 17. 2$e =resi!ent s$all $ave control o( all t$e e4ec%tive !e&artments b%rea%s an! o((ices. He s$all ens%re t$at t$e la,s be (ait$(%ll' e4ec%te!." Control is sai! to be t$e ver' $eart o( t$e &o,er o( t$e &resi!enc'. #s $ea! o( t$e 34ec%tive De&artment t$e =resi!ent $o,ever ma' !elegate some o( $is &o,ers to t$e Cabinet members e4ce&t ,$en $e is re.%ire! b' t$e Constit%tion to act in &erson or t$e e4igencies o( t$e sit%ation !eman! t$at $e acts &ersonall'. 2$e members o( Cabinet ma' act (or an! in be$al( o( t$e =resi!ent in certain matters beca%se t$e =resi!ent cannot be e4&ecte! to e4ercise $is control ;an! s%&ervisor'< &o,ers &ersonall' all t$e time. 3ac$ $ea! o( a !e&artment is an! m%st be t$e =resi!entHs alter ego in t$e matters o( t$at !e&artment ,$ere t$e =resi!ent is re.%ire! b' la, to e4ercise a%t$orit'. 6$en an a!ministrative com&laint is t$ere(ore (ile! t$e Disci&lining #%t$orit' s$all iss%e an or!er re.%iring t$e res&on!ent to s%bmit $is veri(ie! ans,er ,it$in (i(teen ;1C< !a's (rom notice. @&on (iling o( t$e ans,er t$e Disci&lining #%t$orit' s$all re(er t$e case to t$e *nvestigating #%t$orit' (or investigation. *n t$e case at bar &etitioner claims t$at t$e D*LG )ecretar' %s%r&e! t$e &o,er o( t$e =resi!ent ,$en $e re.%ire! &etitioner to ans,er t$e com&laint. @n!is&%tabl' t$e letterD com&laint ,as (ile! ,it$ t$e O((ice o( t$e =resi!ent b%t it ,as t$e D*LG )ecretar' ,$o or!ere! &etitioner to ans,er. )trictl' a&&l'ing t$e r%les t$e O((ice o( t$e =resi!ent !i! not com&l' ,it$ t$e &rovisions o( #.O. No. /1. 2$e O((ice s$o%l! $ave (irst re.%ire! &etitioner to (ile $is ans,er. 2$erea(ter t$e com&laint an! t$e ans,er s$o%l! $ave been re(erre! to t$e *nvestigating #%t$orit' (or (%rt$er &rocee!ings. Be t$at as it ma' t$is &roce!%ral la&se is not (atal. 2$e (iling o( t$e ans,er is necessar' merel' to enable t$e =resi!ent to ma+e a &reliminar' assessment o( t$e case.UG/V 2$e =resi!ent (o%n! t$e com&laint s%((icient in (orm an! s%bstance to ,arrant its (%rt$er investigation. 2$e 9%!gment o( t$e =resi!ent on t$e matter is entitle! to res&ect in t$e absence o( grave ab%se o( !iscretion. 6ON t$e D*LG erre! in !eclaring $im in !e(a%lt (or (iling a motion to !ismiss. *t is tr%e t$at a motion to !ismiss is not a &lea!ing &ro$ibite! %n!er t$e LGC o( 1881 nor in #.O. No. /1. =etitioner $o,ever ,as instr%cte! not to (ile a motion to !ismiss in t$e or!er to (ile ans,er. 2$rice $e re.%este! (or e4tension o( time to (ile $is ans,er citing as reasons t$e searc$ (or com&etent co%nsel an! t$e !eman!s o( $is o((icial !%ties. #n! t$rice $is re.%ests ,ere grante!. 3ven t$e or!er o( !e(a%lt ,as reconsi!ere! an! &etitioner ,as given a!!itional time to (ile ans,er. #(ter all t$e re.%ests an! seven mont$s later $e (ile! a motion to !ismiss. =etitioner s$o%l! +no, t$at t$e (ormal investigation o( t$e case is re.%ire! b' la, to be (inis$e! ,it$in one $%n!re! t,ent' ;1/5< !a's (rom t$e time o( (ormal notice to t$e res&on!ent. 2$e e4tensions &etitioner re.%este! cons%me! (i(t'D(ive ;CC< !a's o( t$is &erio!.UG1V =etitioner in (act (ile! $is ans,er nine ;8< mont$s a(ter t$e (irst notice. *n!ee! t$is ,as more t$an s%((icient time (or &etitioner to com&l' ,it$ t$e or!er to (ile ans,er. 2$e s&ee!' !is&osition o( a!ministrative com&laints is re.%ire! b' &%blic service. 2$e e((icienc' o( o((icials %n!er investigation is im&aire! ,$en a case $angs over t$eir $ea!s. O((icials !eserve to be cleare! e4&e!itio%sl' i( t$e' are innocent also e4&e!itio%sl' i( g%ilt' so t$at t$e b%siness o( government ,ill not be &re9%!ice!.
1.
/07

1. 6ON t$e D*LG erre! in recommen!ing to t$e Disci&lining #%t$orit' $is &reventive s%s&ension !%ring t$e investigation in vie, o( 7oson>s ine4c%sable (ail%re to (ile an ans,er. =reventive s%s&ension is a%t$oriBe! %n!er )ection G1 o( t$e LGC viB: ;a< =reventive s%s&ension ma' be im&ose!: ;1< B' t$e =resi!ent i( t$e res&on!ent is an elective o((icial o( a &rovince a $ig$l' %rbaniBe! or an in!e&en!ent com&onent cit'A ;b< =reventive s%s&ension ma' be im&ose! at an' time a(ter t$e iss%es are 9oine! ,$en t$e evi!ence o( g%ilt is strong an! given t$e gravit' o( t$e o((ense t$ere is great &robabilit' t$at t$e contin%ance in o((ice o( t$e res&on!ent co%l! in(l%ence t$e ,itnesses or &ose a t$reat to t$e sa(et' an! integrit' o( t$e recor!s an! ot$er evi!enceA =rovi!e! 2$at an' single &reventive s%s&ension o( local elective o((icials s$all not e4ten! be'on! si4t' ;G5< !a's: =rovi!e! (%rt$er 2$at in t$e event t$at several a!ministrative cases are (ile! against an elective o((icial $e cannot be &reventivel' s%s&en!e! (or more t$an ninet' ;85< !a's ,it$in a single 'ear on t$e same gro%n! or gro%n!s e4isting an! +no,n at t$e time o( t$e (irst s%s&ension. =reventive s%s&ension ma' be im&ose! b' t$e Disci&lining #%t$orit' at an' time ;a< a(ter t$e iss%es are 9oine!A ;b< ,$en t$e evi!ence o( g%ilt is strongA an! ;c< given t$e gravit' o( t$e o((ense t$ere is great &robabilit' t$at t$e res&on!ent ,$o contin%es to $ol! o((ice co%l! in(l%ence t$e ,itnesses or &ose a t$reat to t$e sa(et' an! integrit' o( t$e recor!s an! ot$er evi!ence. 34ec%tive )ecretar' 2orres (o%n! t$at all t$e re.%isites (or t$e im&osition o( &reventive s%s&ension $a! been com&lie! ,it$. =etitionerHs (ail%re to (ile $is ans,er !es&ite several o&&ort%nities given $im ,as constr%e! as a ,aiver o( $is rig$t to (ile ans,er an! &resent evi!enceA an! as a res%lt o( t$is ,aiver t$e iss%es ,ere !eeme! to $ave been 9oine!. 2$e 34ec%tive )ecretar' also (o%n! t$at t$e evi!ence o( &etitioner 7osonHs g%ilt ,as strong an! t$at $is contin%ance in o((ice !%ring t$e &en!enc' o( t$e case co%l! in(l%ence t$e ,itnesses an! &ose a t$reat to t$e sa(et' an! integrit' o( t$e evi!ence against $im. 1. 6ON t$e 7an%ar' 8 1888 -esol%tion o( t$e 34ec%tive )ecretar' (in!ing &etitioner g%ilt' as c$arge! an! im&osing on $im t$e &enalt' o( s%s&ension (rom o((ice (or si4 ;G< mont$s (rom o((ice ,it$o%t &a' is vali!
=etitioner claims t$at t$e s%s&ension ,as ma!e ,it$o%t

(ormal investigation &%rs%ant to t$e &rovisions o( -%le 7 o( #.O. No. /1. 6e o((er no ob9ection an! conc%r ,it$ t$e assertion o( res&on!ent t$at $e $as t$e rig$t (or t$e con!%ct o( (ormal investigation. Ho,ever be(ore t$ere s$all be a (ormal investigation 9oin!er o( iss%es m%st alrea!' be &resent or res&on!entHs ans,er $as alrea!' been (ile!. *n t$e case at bar t$e a!mission o( res&on!entHs ans,er a(ter $aving been !eclare! in !e(a%lt ,as con!itione! on t$e (act o( s%bmission o( &osition &a&ers b' t$e &arties a(ter ,$ic$ t$e case s$all be !eeme! s%bmitte! (or resol%tion. -es&on!ent instea! o( s%bmitting $is &osition &a&er (ile! $is s%b9ect motion ,$ile com&lainants mani(este! to (orego t$e s%bmission o( &osition &a&er an! s%bmit t$e case (or resol%tion on t$e basis o( t$e &lea!ings on $an!. )ettle! is t$e r%le t$at in a!ministrative &rocee!ings tec$nical r%les o( &roce!%re an! evi!ence are not strictl' a&&lie!. 2$e essence o( !%e &rocess is to be (o%n! in t$e reasonable o&&ort%nit' to be $ear! an! to s%bmit evi!ence one ma' $ave in s%&&ort o( oneHs !e(ense. 2o be $ear! !oes not onl' mean verbal arg%ments in co%rtA one ma' be $ear! also t$ro%g$ &lea!ings. 6$ere o&&ort%nit' to be $ear! eit$er t$ro%g$ oral arg%ments or &lea!ings is accor!e! t$ere is no !enial o( &roce!%ral !%e &rocess. 2$%s ,$en res&on!ent (aile! to s%bmit $is &osition &a&er as !irecte! an! insiste! (or t$e con!%ct o( (ormal investigation $e ,as not !enie! o( $is rig$t o( &roce!%ral &rocess. 2$e recor!s s$o, t$at on #%g%st /7 1887 &etitioner s%bmitte! $is #ns,er #! Ca%telam ,$ere $e !is&%te! t$e tr%t$ o( t$e allegations t$at $e barge! into t$e session $all o( t$e ca&itol an! committe! &$'sical violence to $arass t$e &rivate res&on!ents ,$o ,ere o&&ose! to an' move (or t$e &rovince to contract a =1C5 million loan (rom =NB. *n $is Or!er o( October 8 1887 @n!ersecretar' )anc$eB a!mitte! &etitionerHs #ns,er #! Ca%telam b%t treate! it as a &osition &a&er. On October 1C 1887 &etitioner (ile! a Motion to Con!%ct Formal *nvestigation. =etitioner reiterate! t$is motion on October /8 1887. =etitionerHs motion ,as !enie! on November 11 1887. )ecretar' Barbers (o%n! &etitioner g%ilt' as c$arge! on t$e basis o( t$e &artiesH &osition &a&ers. On 7an%ar' 8 1888 34ec%tive )ecretar' 2orres a!o&te! )ecretar' BarbersH (in!ings an! recommen!ations
/08

an! im&ose! on &etitioner t$e &enalt' o( si4 ;G< mont$s s%s&ension ,it$o%t &a'. 2$e re9ection o( &etitionerHs rig$t to a (ormal investigation !enie! $im &roce!%ral !%e &rocess. )ection C o( #. O. No. /1 &rovi!es t$at at t$e &reliminar' con(erence t$e *nvestigating #%t$orit' s$all s%mmon t$e &arties to consi!er ,$et$er t$e' !esire a (ormal investigation. 2$is &rovision !oes not give t$e *nvestigating #%t$orit' t$e !iscretion to !etermine ,$et$er a (ormal investigation ,o%l! be con!%cte!. 2$e recor!s s$o, t$at &etitioner (ile! a motion (or (ormal investigation. #s res&on!ent $e is accor!e! several rig$ts %n!er t$e la, to ,it: ")ec. GC. -ig$ts o( -es&on!ent. DD 2$e res&on!ent s$all be accor!e! (%ll o&&ort%nit' to a&&ear an! !e(en! $imsel( in &erson or b' co%nsel to con(ront an! crossDe4amine t$e ,itnesses against $im an! to re.%ire t$e atten!ance o( ,itnesses an! t$e &ro!%ction o( !oc%mentar' evi!ence in $is (avor t$ro%g$ com&%lsor' &rocess o( s%b&oena or s%b&oena !%ces tec%m." #n erring elective local o((icial $as rig$ts a+in to t$e constit%tional rig$ts o( an acc%se!.2$ese rig$ts are essentiall' &art o( &roce!%ral !%e &rocess.2$e local elective o((icial $as t$e ;1< rig$t to a&&ear an! !e(en! $imsel( in &erson or b' co%nselA ;/< t$e rig$t to con(ront an! crossD e4amine t$e ,itnesses against $imA an! ;1< t$e rig$t to com&%lsor' atten!ance o( ,itness an! t$e &ro!%ction o( !oc%mentar' evi!ence. 2$ese rig$ts are reiterate! in t$e -%les *m&lementing t$e LGC an! in #.O. No. /1. 6ell to note &etitioner (ormall' claime! $is rig$t to a (ormal investigation a(ter $is #ns,er #! Ca%telam $as been a!mitte! b' @n!ersecretar' )anc$eB. =etitionerHs rig$t to a (ormal investigation ,as not satis(ie! ,$en t$e com&laint against $im ,as !eci!e! on t$e basis o( &osition &a&ers. 2$ere is not$ing in t$e LGC an! its *m&lementing -%les an! -eg%lations nor in #.O. No. /1 t$at &rovi!e t$at a!ministrative cases against elective local o((icials can be !eci!e! on t$e basis o( &osition &a&ers. #.O. No. /1 states t$at t$e *nvestigating #%t$orit' ma' re.%ire t$e &arties to s%bmit t$eir res&ective memoran!a b%t t$is is onl' a(ter (ormal investigation an! $earing.U7/V #.O. No. /1 !oes not a%t$oriBe t$e *nvestigating #%t$orit' to !is&ense ,it$ a $earing es&eciall' in cases involving allegations o( (act ,$ic$ are not onl' in contrast b%t contra!ictor' to eac$ ot$er. 2$ese contra!ictions are best settle! b' allo,ing t$e e4amination an! crossDe4amination o( ,itnesses. =osition &a&ers are o(tenDtimes &re&are! ,it$ t$e assistance o( la,'ers an! t$eir art(%l &re&aration can ma+e t$e !iscover' o( tr%t$ !i((ic%lt. 2$e 9%ris&r%!ence cite! b' t$e D*LG in its or!er !en'ing &etitionerHs motion (or a (ormal investigation a&&lies to a&&ointive o((icials an! em&lo'ees. #!ministrative !isci&linar' &rocee!ings against elective government o((icials are not e4actl' similar to t$ose against a&&ointive o((icials. *n (act t$e &rovisions t$at a&&l' to elective local o((icials are se&arate an! !istinct (rom a&&ointive government o((icers an! em&lo'ees. 2$is can be gleane! (rom t$e LGC itsel(. 2$e &rovisions (or a!ministrative !isci&linar' actions against elective local o((icials are mar+e!l' !i((erent (rom a&&ointive o((icials. 2$e r%les on t$e removal an! s%s&ension o( elective local o((icials are more stringent. 2$e &roce!%re o( re.%iring &osition &a&ers in lie% o( a $earing in a!ministrative cases is e4&ressl' allo,e! ,it$ res&ect to a&&ointive o((icials b%t not to t$ose electe!. #n elective o((icial electe! b' &o&%lar vote is !irectl' res&onsible to t$e comm%nit' t$at electe! $im. 2$e o((icial $as a !e(inite term o( o((ice (i4e! b' la, ,$ic$ is relativel' o( s$ort !%ration. )%s&ension an! removal (rom o((ice !e(initel' a((ects an! s$ortens t$is term o( o((ice. 6$en an elective o((icial is s%s&en!e! or remove! t$e &eo&le are !e&rive! o( t$e services o( t$e man t$e' $a! electe!. *m&licit in t$e rig$t o( s%((rage is t$at t$e &eo&le are entitle! to t$e services o( t$e elective o((icial o( t$eir c$oice. )%s&ension an! removal are t$%s im&ose! onl' a(ter t$e elective o((icial is accor!e! $is rig$ts an! t$e evi!ence against $im strongl' !ictates t$eir im&osition. Con ucto v. Monzon Facts: On 15 #%g%st 1881 com&lainant (ile! a com&laint ,it$ t$e )angg%niang =anl%ngso! o( )an =ablo Cit' against Mag$irang t$e baranga' c$airman o( Baranga' ***D3 o( )an =ablo Cit' (or ab%se o( a%t$orit' serio%s irreg%larit' an! violation o( la, in t$at among ot$er t$ings Mag$irang a&&ointe! $is sisterDinDla, Florian to t$e &osition o( baranga' secretar' on 17 Ma' 1888 in violation o(
/08

)ection 180 o( t$e LGC. #t t$e same time com&lainant (ile! a com&laint (or violation o( #rticle /00 o( t$e -evise! =enal Co!e ,it$ t$e O((ice o( t$e Cit' =rosec%tor against Mag$irang ,$ic$ ,as $o,ever !ismisse! on 15 )e&tember 1881 on t$e gro%n! t$at Mag$irang>s sisterDinDla, ,as a&&ointe! be(ore t$e e((ectivit' o( t$e LGC o( 1881 ,$ic$ &ro$ibits a &%nong baranga' (rom a&&ointing a relative ,it$in t$e (o%rt$ civil !egree o( consang%init' or a((init' as baranga' secretar'. 2$e or!er o( !ismissal ,as s%bmitte! to t$e O((ice o( t$e De&%t' Omb%!sman (or L%Bon. On // October 1881 com&lainant obtaine! O&inion No. /0G s. 1881 (rom Director 7acob Montesa o( t$e De&artment o( *nterior an! Local Government ,$ic$ !eclare! t$at t$e a&&ointment iss%e! b' Mag$irang to $is sisterDinDla, violate! &aragra&$ ;/< )ection 8C o( B.=. Blg. 117 t$e LGC &rior to t$e LGC o( 1881. *n its -evise! -esol%tion o( /8 November 1881 U0V t$e O((ice o( t$e De&%t' Omb%!sman (or L%Bon !ismisse! t$e case b%t or!ere! Mag$irang to re&lace $is sisterDinDla, as baranga' secretar'. On /5 December 1881 com&lainant move! t$at t$e O((ice o( t$e De&%t' Omb%!sman (or L%Bon reconsi!er t$e or!er o( /8 November 1881 in lig$t o( O&inion No. /0G s. 1881 o( Director Montesa. #cting on t$e motion Francisco )amala Gra(t *nvestigation O((icer ** o( t$e O((ice o( t$e De&%t' Omb%!sman (or L%Bon iss%e! an or!erUGV on 8 Febr%ar' 1880 granting t$e motion (or reconsi!eration an! recommen!ing t$e (iling o( an in(ormation (or %nla,(%l a&&ointment ;#rticle /00 o( t$e -evise! =enal Co!e< against Mag$irang. 2$e recommen!ation ,as !%l' a&&rove! b' Man%el C. Domingo De&%t' Omb%!sman (or L%Bon. *n a 1r! in!orsement !ate! 0 Marc$ 1880 U7V t$e De&%t' Omb%!sman (or L%Bon transmitte! t$e recor! o( t$e case to t$e O((ice o( t$e Cit' =rosec%tor o( )an =ablo Cit' an! instr%cte! t$e latter to (ile t$e corres&on!ing in(ormation against Mag$irang ,it$ t$e &ro&er co%rt an! to &rosec%te t$e case. *n $is Or!er o( 15 7%ne 188C U8V res&on!ent 9%!ge !enie! t$e motion (or s%s&ension on t$e gro%n! t$at: U2V$e allege! o((ense o( @NL#6F@L #==O*N2M3N2 %n!er #rticle /00 o( t$e -evise! =enal Co!e ,as committe! on Ma' 17 1888 !%ring UMag$irang>sV terms ;sic< o( o((ice (rom 1888 to 1880 an! sai! acc%se! ,as again reDelecte! as Baranga' C$airman !%ring t$e last Baranga' 3lection o( Ma' 8 1880 $ence o((enses committe! !%ring &revio%s term is ;sic< not a ca%se (or removal ;LiBareB vs. Hec$anova et al. G.-. No. LD//5C8 Ma' 17 18GC<A an or!er o( s%s&ension (rom o((ice relating to a given term ma' not be t$e basis o( contem&t ,it$ res&ect to ones ;sic< ass%m&tion o( t$e same o((ice %n!er a ne, term ;Oliveros vs. Killal%B G.-. No. LD o((icer (or acts !one &rior to $is &resent term o( o((ice. 2o !o ot$er,ise ,o%l! !e&rieve ;sic< t$e &eo&le o( t$eir rig$t to elect t$eir o((icer. 6$en t$e &eo&le $ave electe! a man to o((ice it m%st be ass%me! t$at t$e' !i! t$is ,it$ +no,le!ge o( $is li(e an! c$aracter an! t$at t$e' !isregar!e! or (orgave $is (a%lt or miscon!%ct ;sic< i( $e $a! been g%ilt' i( an'. M- !enie!. Com&lainant t$en move! t$at res&on!ent in$ibit $imsel( (rom Criminal Case No. /G/05. *n $is or!er o( /1 )e&tember 188C U11V res&on!ent vol%ntaril' in$ibite! $imsel(. 2$e case ,as assigne! to 7%!ge #!elar!o ). 3scoses &er or!er o( 34ec%tive 7%!ge Bienveni!o K. -e'es o( t$e -egional 2rial Co%rt o( )an =ablo Cit'. On 1C October 188G com&lainant (ile! $is s,orn letterDcom&laint ,it$ t$e O((ice o( t$e Co%rt #!ministrator. *n $is comment !ate! 10 Febr%ar' 1887 (ile! in com&liance ,it$ t$e resol%tion o( t$is Co%rt o( /7 7an%ar' 1887 res&on!ent asserte! t$at $e $a! been Econtin%o%sl' +ee&ing abreast o( legal an! 9%ris&r%!ential !evelo&ment UsicV in t$e la,F since $e &asse! t$e 18CC Bar 34aminationsA an! t$at $e iss%e! t$e t,o c$allenge! or!ers Eonl' a(ter !%e a&&reciation o( &revailing 9%ris&r%!ence on t$e matter F citing a%t$orities in s%&&ort t$ereo(. *ss%es: 1. 6ON a criminal o((ense (or violation o( -e&%blic #ct 1518 committe! b' an elective o((icer !%ring one term ma' be t$e basis o( $is s%s&ension in a s%bse.%ent term in t$e event o( $is reelection to o((ice. L%ciano vs. =rovincial Governor: t$e cases o( =asc%al an! LiBares are a%t$orit' (or t$e &rece&t t$at "a reelecte! &%blic o((icer is no longer amenable to a!ministrative sanctions (or acts committe! !%ring $is (ormer ten%re" b%t t$at as to criminal &rosec%tions &artic%larl' (or violations o( t$e #ntiD Gra(t an! Corr%&t =ractices #ct as in t$e case at bar t$e same are not barre! b' reelection o( t$e &%blic o((icer since inter alia one o( t$e &enalties attac$e! to t$e o((ense is &er&et%al !is.%ali(ication (rom &%blic o((ice an! it "is &atentl' o((ensive to t$e ob9ectives an! t$e letter o( t$e #ntiDGra(t an! Corr%&t =ractice #ct . . . t$at an o((icial ma' amass ,ealt$ t$r% gra(t an! corr%&t &ractices an! t$erea(ter %se t$e same to &%rc$ase reelection an! t$ereb' la%n!er $is evil acts." =%nis$ment (or a crime is a vin!ication (or an o((ense against t$e )tate an! t$e bo!' &olitic. 2$e small segment o( t$e national electorate t$at constit%tes t$e electorate o( t$e m%nici&alit' o( #nti&olo $as no &o,er to con!one a
/C5

crime against t$e &%blic 9%stice o( t$e )tate an! t$e entire bo!' &olitic. -eelection to &%blic o((ice is not &rovi!e! (or in #rticle 88 o( t$e -evise! =enal Co!e as a mo!e o( e4ting%is$ing criminal liabilit' inc%rre! b' a &%blic o((icer &rior to $is reelection. On t$e contrar' #rticle 8 o( t$e #ntiD Gra(t #ct im&oses as one o( t$e &enalties in case o( conviction &er&et%al !is.%ali(ication (rom &%blic o((ice an! #rticle 15 o( t$e -evise! =enal Co!e !eclares t$at s%c$ &enalt' o( &er&et%al !is.%ali(ication entails "t$e !e&rivation o( t$e &%blic o((ices an! em&lo'ments ,$ic$ t$e o((en!er ma' $ave $el! even i( con(erre! b' &o&%lar election." *t is mani(est t$en t$at s%c$ con!onation o( an o((icerHs (a%lt or miscon!%ct !%ring a &revio%s e4&ire! term b' virt%e o( $is reelection to o((ice (or a ne, term can be !eeme! to a&&l' onl' to $is a!ministrative an! not to $is criminal g%ilt. #s s%ccinctl' state! in t$en )olicitor General ;no, #ssociate 7%stice< Feli4 W. #ntonioHs memoran!%m (or t$e )tate "to $ol! t$at &etitionerHs reelection erase! $is criminal liabilit' ,o%l! in e((ect trans(er t$e !etermination o( t$e criminal c%l&abilit' o( an erring o((icial (rom t$e co%rt to ,$ic$ it ,as lo!ge! b' la, into t$e c$anging an! transient ,$im an! ca&rice o( t$e electorate. 2$is cannot be so (or ,$ile $is constit%ents ma' con!one t$e mis!ee! o( a corr%&t o((icial b' ret%rning $im bac+ to o((ice a criminal action initiate! against t$e latter can onl' be $ear! an! trie! b' a co%rt o( 9%stice $is ne(ario%s act $aving been committe! against t$e ver' )tate ,$ose la,s $e $a! s,orn to (ait$(%ll' obe' an! %&$ol!. # contrar' r%le ,o%l! ero!e t$e ver' s'stem %&on ,$ic$ o%r government is base! ,$ic$ is one o( la,s an! not o( men." #g%inal!o v. )antos: a &%blic o((icial cannot be remove! (rom a!ministrative miscon!%ct committe! !%ring a &rior term since $is reDelection to o((ice o&erates as a con!onation o( t$e o((icer>s &revio%s miscon!%ct to t$e e4tent o( c%tting o(( t$e rig$t to remove $im t$ere(or. 2$e (oregoing r%le $o,ever (in!s no a&&lication to criminal cases &en!ing against &etitioner (or acts $e ma' $ave committe! !%ring t$e (aile! co%&. 2$%s (ar no r%ling to t$e contrar' $as even ri&&le! t$e !octrine en%nciate! in t$e aboveDmentione! cases. *( res&on!ent $as tr%l' been Econtin%o%sl' +ee&ing abreast o( legal an! 9%ris&r%!ential !evelo&ment UsicV in t$e la, F it ,as im&ossible (or $im to $ave misse! or misrea! t$ese cases. 6$at !etracts (rom $is claim o( assi!%it' is t$e (act t$at $e even cite! t$e cases o( Oliveros v. Killal%B an! #g%inal!o v. )antos in s%&&ort o( $is 15 7%ne 188C or!er. 6$at is t$en evi!ent is t$at res&on!ent eit$er !i! not t$oro%g$l' rea! t$ese cases or t$at $e sim&l' miscom&re$en!e! t$em. 2$e latter o( co%rse ,o%l! onl' mani(est eit$er incom&etence since bot$ cases ,ere ,ritten in &lain an! sim&le lang%age t$ereb' (oreclosing an' &ossibilit' o( mis%n!erstan!ing or con(%sionA or !eliberate !isregar! o( a long settle! !octrine &rono%nce! b' t$is Co%rt. Pablico v. $illapan o Facts: On #%g%st C 1888 Maaga! an! Fernan!eB bot$ members o( t$e )angg%niang Ba'an o( )an Kicente =ala,an (ile! ,it$ t$e )angg%niang =anlala,igan o( =ala,an an a!ministrative com&laint against Killa&an!o t$en Ma'or o( )an Kicente =ala,an (or ab%se o( a%t$orit' an! c%l&able violation o( t$e Constit%tion. Com&lainants allege! t$at Killa&an!o on be$al( o( t$e m%nici&alit' entere! into a cons%ltanc' agreement ,it$ 2ia&e a !e(eate! ma'oralt' can!i!ate in t$e Ma' 1888 elections. 2$e' arg%e t$at t$e cons%ltanc' agreement amo%nte! to an a&&ointment to a government &osition ,it$in t$e &ro$ibite! oneD'ear &erio! %n!er #rticle *JDB )ection G o( t$e 1887 Constit%tion. Ho,ever accor!ing to Killa&an!o $e merel' $ire! 2ia&e. He invo+e! O&inion No. 15G s. 188/ o( t$e DO7 stating t$at t$e a&&ointment o( a !e(eate! can!i!ate ,it$in one 'ear (rom t$e election as a cons%ltant !oes not constit%te an a&&ointment to a government o((ice or &osition as &ro$ibite! b' t$e Constit%tion. 2$e )angg%niang =anlala,igan o( =ala,an (o%n! Killa&an!o g%ilt' o( t$e a!ministrative c$arge an! im&ose! on $im t$e &enalt' o( !ismissal (rom service. He a&&eale! to t$e O((ice o( t$e =resi!ent ,$ic$ on Ma' /8 /555 a((irme! t$e !ecision o( t$e )angg%niang =anlala,igan o( =ala,an. =en!ing res&on!ent>s motion (or reconsi!eration o( t$e !ecision o( t$e O((ice o( t$e =resi!ent or on 7%ne 1G /555 &etitioner -amir -. =ablico t$en KiceDma'or o( )an Kicente =ala,an too+ $is oat$ o( o((ice as M%nici&al Ma'or. Conse.%entl' res&on!ent (ile! ,it$ t$e -egional 2rial Co%rt o( =ala,an a &etition (or certiorari an! &ro$ibition ,it$ &reliminar' in9%nction an! &ra'er (or a tem&orar' restraining or!er !oc+ete!
/C1

as )=L =roc. No. 10G/. 2$e &etition see+s to ann%l inter alia t$e oat$ a!ministere! to &etitioner. 2$e 34ec%tive 7%!ge grante! a 2em&orar' -estraining Or!er e((ective (or 7/ $o%rs as a res%lt o( ,$ic$ &etitioner cease! (rom !isc$arging t$e (%nctions o( ma'or. Mean,$ile t$e case ,as ra((le! to Branc$ 8C ,$ic$ on 7%ne /1 /555 !enie! res&on!ent>s motion (or e4tension o( t$e 7/D$o%r tem&orar' restraining or!er. Hence &etitioner res%me! $is ass%m&tion o( t$e (%nctions o( Ma'or o( )an Kicente =ala,an. On 7%l' 0 /555 res&on!ent instit%te! a &etition (or certiorari an! &ro$ibition be(ore t$e Co%rt o( #&&eals see+ing to ann%l: ;1< t$e Ma' /8 /555 !ecision o( t$e O((ice o( t$e =resi!entA ;/< t$e Febr%ar' 1 /555 !ecision o( t$e )angg%niang =anlala,igan o( =ala,anA an! ;1< t$e 7%ne /1 /555 or!er o( t$e -egional 2rial Co%rt o( =ala,an Branc$ 8C. On Marc$ 1G /551 t$e Co%rt o( #&&eals8 !eclare! voi! t$e assaile! !ecisions o( t$e O((ice o( t$e =resi!ent an! t$e )angg%niang =anlala,igan o( =ala,an an! or!ere! &etitioner to vacate t$e O((ice o( Ma'or o( )an Kicente =ala,an. # motion (or reconsi!eration ,as !enie! on #&ril /1 /551.15 Hence t$e instant &etition (or revie,. *ss%e: 6ON local legislative bo!ies an!?or t$e O((ice o( t$e =resi!ent on a&&eal vali!l' im&ose! t$e &enalt' o( !ismissal (rom service on erring elective local o((icials. Moot an! aca!emic b%t )C resolve! to &ass %&on iss%e concerning t$e a&&lication o( certain &rovisions o( t$e LGC o( 1881. )ection G5 last &aragra&$: #n elective local o((icial ma' be remove! (rom o((ice on t$e gro%n!s en%merate! above b' or!er o( t$e &ro&er co%rt. *t is clear t$at t$e &enalt' o( !ismissal (rom service %&on an erring elective local o((icial ma' be !ecree! onl' b' a co%rt o( la,. )alalima v. G%ingona: t$e O((ice o( t$e =resi!ent is ,it$o%t an' &o,er to remove electe! o((icials since s%c$ &o,er is e4cl%sivel' veste! in t$e &ro&er co%rts as e4&ressl' &rovi!e! (or in t$e last &aragra&$ o( t$e a(ore.%ote! )ection G5. #rticle 1/0 ;b< -%le J*J o( t$e -%les an! -eg%lations *m&lementing t$e LGC $o,ever a!!s t$at X ";b< #n elective local o((icial ma' be remove! (rom o((ice on t$e gro%n!s en%merate! in &aragra&$ ;a< o( t$is #rticle U2$e gro%n!s en%merate! in )ection G5 LGC o( 1881V b' or!er o( t$e &ro&er co%rt or t$e !isci&lining a%t$orit' ,$ic$ever (irst ac.%ires 9%ris!iction to t$e e4cl%sion o( t$e ot$er." 2$e !isci&lining a%t$orit' re(erre! to &ertains to t$e )angg%niang =anlala,igan?=anl%ngso!?Ba'an an! t$e O((ice o( t$e =resi!ent. )alalima: t$is grant to t$e "!isci&lining a%t$orit'" o( t$e &o,er to remove elective local o((icials is clearl' be'on! t$e a%t$orit' o( t$e Oversig$t Committee t$at &re&are! t$e -%les an! -eg%lations. No r%le or reg%lation ma' alter amen! or contravene a &rovision o( la, s%c$ as t$e LGC. *m&lementing r%les s$o%l! con(orm not clas$ ,it$ t$e la, t$at t$e' im&lement (or a reg%lation ,$ic$ o&erates to create a r%le o%t o( $armon' ,it$ t$e stat%te is a n%llit'. 3ven )enator #.%ilino W. =imentel 7r. t$e &rinci&al a%t$or o( t$e LGC o( 1881 e4&resse! !o%bt as to t$e vali!it' o( #rticle 1/0 ;b< -%le J*J o( t$e im&lementing r%les. 2$e &o,er to remove erring elective local o((icials (rom service is lo!ge! e4cl%sivel' ,it$ t$e co%rts. Hence #rticle 1/0 ;b< -%le J*J o( t$e -%les an! -eg%lations *m&lementing t$e LGC inso(ar as it vests &o,er on t$e "!isci&lining a%t$orit'" to remove (rom o((ice erring elective local o((icials is voi! (or being re&%gnant to t$e last &aragra&$ o( )ection G5 o( t$e LGC o( 1881. 2$e la, on s%s&ension or removal o( elective &%blic o((icials m%st be strictl' constr%e! an! a&&lie! an! t$e a%t$orit' in ,$om s%c$ &o,er o( s%s&ension or removal is veste! m%st e4ercise it ,it$ %tmost goo! (ait$ (or ,$at is involve! is not 9%st an or!inar' &%blic o((icial b%t one c$osen b' t$e &eo&le t$ro%g$ t$e e4ercise o( t$eir constit%tional rig$t o( s%((rage. 2$eir ,ill m%st not be &%t to na%g$t b' t$e ca&rice or &artisans$i& o( t$e !isci&lining a%t$orit'. 6$ere t$e !isci&lining a%t$orit' is given onl' t$e &o,er to s%s&en! an! not t$e &o,er to remove it s$o%l! not be &ermitte! to mani&%late t$e la, b' %s%r&ing t$e &o,er to remove.
/C/
%var one v. COM%L%C Facts: 3var!one is t$e ma'or o( t$e M%nici&alit' o( )%lat 3astern )amar $aving been electe! to t$e &osition !%ring t$e 1888 local elections. He ass%me! o((ice imme!iatel' a(ter &roclamation. On 10 Febr%ar' 1885 #&ela!o #clan an! Nival (ile! a &etition (or t$e recall o( 3var!one ,it$ t$e O((ice o( t$e Local 3lection -egistrar M%nici&alit' o( )%lat. COM3L3C iss%e! a resol%tion a&&roving t$e recommen!ation to $ol! on 10 7%l' 1885 t$e signing o( t$e &etition (or recall against inc%mbent Ma'or 3var!one o( t$e sai! M%nici&alit'. 3var!one (ile! be(ore t$is Co%rt a &etition (or &ro$ibition ,it$ %rgent &ra'er (or imme!iate iss%ance o( restraining or!er an!?or ,rit o( &reliminar' in9%nction. )C iss%e! 2-O or!ering t$e res&on!ents to cease an! !esist (rom $ol!ing t$e signing o( t$e &etition (or recall. Central O((ice got it on t$e same !a' b%t (iel! agent got it 1 !a's later a !a' a(ter t$e com&letion o( t$e signing &rocess so%g$t to be tem&oraril' sto&&e! b' t$e 2-O. COM3L3C n%lli(ie! t$e signing &rocess $el! in )%lat 3astern )amar (or being violative o( t$e 2-O. #&ela!o et al. (ile! M- !enie!. Hence t$e &resent &etition (or revie, on certiorari. *ss%es: 1. 6ON COM3L3C -esol%tion //7/ is constit%tional. :3). 3var!one: #rticle J )ection 1 o( t$e 1887 Constit%tion re&eale! Batas =ambansa Blg. 117 in (avor o( one to be enacte! b' Congress. )ince t$ere ,as !%ring t$e &erio! material to t$is case no LGC enacte! b' Congress a(ter t$e
/C1

e((ectivit' o( t$e 1887 Constit%tion nor an' la, (or t$at matter on t$e s%b9ect o( recall o( electe! government o((icials t$ere is no basis (or COM3L3C -esol%tion No. //7/ an! t$at t$e recall &rocee!ings in t$e case at bar is &remat%re. COM3L3C: 2$e constit%tional &rovision !oes not re(er onl' to a LGC ,$ic$ is in (%t%r%m b%t also in esse. *t merel' sets (ort$ t$e g%i!elines ,$ic$ Congress ,ill consi!er in amen!ing t$e &rovisions o( t$e &resent LGC. =en!ing t$e enactment o( t$e amen!ator' la, t$e e4isting LGC remains o&erative. 2$e a!o&tion o( t$e 1887 Constit%tion !i! not abrogate t$e &rovisions o( B= No. 117 %nless a certain &rovision t$ereo( is clearl' irreconciliable ,it$ t$e &rovisions o( t$e 1887 Constit%tion. *n t$is case )ections C0 to C8 o( Batas =ambansa No. 117 are not inconsistent ,it$ t$e &rovisions o( t$e Constit%tion. Hence t$e' are o&erative. #rticle JK*** )ection 1 o( t$e 1887 Constit%tion: all e4isting la,s not inconsistent ,it$ t$e 1887 Constit%tion s$all remain o&erative %ntil amen!e! re&eale! or revo+e!. -e&%blic #ct No. 71G5 &rovi!ing (or t$e LGC o( 1881 a&&rove! b' t$e =resi!ent on 15 October 1881 s&eci(icall' re&eals B.=. Blg. 117 as &rovi!e! in )ec. C10 2itle Fo%r o( sai! #ct. B%t t$e LGC o( 1881 ,ill ta+e e((ect onl' on 1 7an%ar' 188/ an! t$ere(ore t$e ol! LGC ;B.=. Blg. 117< is still t$e la, a&&licable to t$e &resent case. Constit%tional Commission: &en!ing t$e enactment o( a ne, LGC %n!er t$e re&ort o( t$e Committee on #men!ments an! 2ransitor' =rovisions t$e (ormer LGC ,$ic$ is Batas =ambansa Blg. 117 s$all contin%e to be e((ective %ntil re&eale! b' t$e Congress o( t$e =$ili&&ines. C$a&ter 1 ;)ections C0 to C8< o( B.=. Blg. 117 &rovi!es (or t$e mec$anism (or recall o( local elective o((icials. )ection C8 e4&ressl' a%t$oriBes t$e res&on!ent COM3L3C to con!%ct an! s%&ervise t$e &rocess o( an! election on recall an! in t$e e4ercise o( s%c$ &o,ers &rom%lgate t$e necessar' r%les an! reg%lations. 2$e 3lection Co!e contains no s&ecial &rovisions on t$e manner o( con!%cting elections (or t$e recall o( a local o((icial. #n' s%c$ election s$all be con!%cte! in t$e manner an! %n!er t$e r%les on s&ecial elections %nless ot$er,ise &rovi!e! b' la, or r%le o( t$e COM3L3C. 2$%s &%rs%ant to t$e r%leDma+ing &o,er veste! in res&on!ent COM3L3C it &rom%lgate! -esol%tion No. //7/ on /1 Ma' 1885. -esol%tion No. //7/ &rom%lgate! b' res&on!ent COM3L3C is vali! an! constit%tional. Conse.%entl' t$e res&on!ent COM3L3C $a! t$e a%t$orit' to a&&rove t$e &etition (or recall an! set t$e !ate (or t$e signing o( sai! &etition. 6ON t$e 2-O iss%e! b' t$is Co%rt ren!ere! n%gator' t$e signing &rocess o( t$e &etition (or recall $el! &%rs%ant to -esol%tion No. //7/. =are!es v. 34ec )ec ,$ere &lebiscite ,as $el! be(ore &lea (or restraining or!er co%l! be !etermine!: &etition became moot an! aca!emic. 3var!one +ne, o( t$e Notice o( -ecall (ile! b' #&ela!o et al. on or abo%t /1 Febr%ar' 1885 as evi!ence! b' t$e -egistr' -et%rn -ecei&tA 'et $e ,as not vigilant in (ollo,ing %& an! !etermining t$e o%tcome o( s%c$ notice. 3var!one alleges t$at it ,as onl' on or abo%t 1 7%l' 1885 t$at $e came to +no, abo%t t$e -esol%tion o( res&on!ent COM3L3C setting t$e signing o( t$e &etition (or recall on 10 7%l' 1885. B%t !es&ite $is %rgent &ra'er (or t$e iss%ance o( a 2-O 3var!one (ile! t$e &etition (or &ro$ibition onl' on 15 7%l' 1885. Co%rt iss%e! a 2-O on 1/ 7%l' 1885 b%t t$e signing o( t$e &etition (or recall too+ &lace 9%st t$e same on t$e sc$e!%le! !ate t$ro%g$ no (a%lt o( t$e res&on!ent COM3L3C an! #&ela!o et al. 2$e signing &rocess ,as %n!erta+en b' t$e constit%ents o( t$e M%nici&alit' o( )%lat an! its 3lection -egistrar in goo! (ait$ an! ,it$o%t +no,le!ge o( t$e 2-O earlier iss%e! b' t$is Co%rt. #s atteste! b' 3lection -egistrar )%mbilla abo%t / 5C5 o( t$e G 585 registere! voters o( )%lat 3astern )amar or abo%t 10Y signe! t$e &etition (or recall. 2$e rig$t to recall is com&lementar' to t$e rig$t to elect or a&&oint. *t is incl%!e! in t$e rig$t o( s%((rage. *t is base! on t$e t$eor' t$at t$e electorate m%st maintain a !irect an! elastic control over &%blic (%nctionaries. *t is also &re!icate! %&on t$e i!ea t$at a &%blic o((ice is "b%r!ene!" ,it$ &%blic interests an! t$at t$e re&resentatives o( t$e &eo&le $ol!ing &%blic o((ices are sim&l' agents or servants o( t$e &eo&le ,it$ !e(inite &o,ers an! s&eci(ic !%ties to &er(orm an! to (ollo, i( t$e' ,is$ to remain in t$eir res&ective o((ices.
/.
/C0
Mabelle O. Nebres | Local Governments Case Digests 6$et$er or not t$e electorate o( t$e M%nici&alit' o( )%lat
$as lost con(i!ence in t$e inc%mbent ma'or is a &olitical .%estion. *t belongs to t$e realm o( &olitics ,$ere onl' t$e &eo&le are t$e 9%!ge. "Loss o( con(i!ence is t$e (ormal ,it$!ra,al b' an electorate o( t$eir tr%st in a &ersonHs abilit' to !isc$arge $is o((ice &revio%sl' besto,e! on $im b' t$e same electorate. 2$e constit%ents $ave ma!e a 9%!gment an! t$eir ,ill to recall t$e inc%mbent ma'or $as alrea!' been ascertaine! an! m%st be a((or!e! t$e $ig$est res&ect. 2$%s t$e signing &rocess $el! last 10 7%l' 1885 in )%lat 3astern )amar (or t$e recall o( Ma'or Feli&e =. 3var!one o( sai! m%nici&alit' is vali! an! $as legal e((ect. Ho,ever recall at t$is time is no longer &ossible beca%se o( t$e limitation &rovi!e! in )ec. CC ;/< o( B.=. Blg 117 ,$ic$ states: )ec. CC. 6$o Ma' Be -ecalle!A Gro%n! (or -ecallA 6$en -ecall Ma' not be Hel!.S ;/< No recall s$all ta+e &lace ,it$in t,o 'ears (rom t$e !ate o( t$e o((icialHs ass%m&tion o( o((ice or one 'ear imme!iatel' &rece!ing a reg%lar local election. 2$e Constit%tion $as man!ate! a s'nc$roniBe! national an! local election &rior to 15 7%ne 188/ or more s&eci(icall' as &rovi!e! (or in #rticle JK*** )ec. C S on t$e secon! Mon!a' o( Ma' 188/. 11 2$%s to $ol! an election on recall a&&ro4imatel' seven ;7< mont$s be(ore t$e reg%lar local election ,ill be violative o( t$e above &rovisions o( t$e a&&licable LGC ;B.=. Blg. 117< Garcia v. COM%L%C Facts: Garcia ,as electe! governor o( t$e &rovince o( Bataan in t$e Ma' 11 188/ elections. *n t$e earl' evening o( 7%l' 1881 some ma'ors viceDma'ors an! members o( t$e )angg%niang Ba'an o( t$e t,elve ;1/< m%nici&alities o( t$e &rovince met at t$e National =o,er Cor&oration com&o%n! in Bagac Bataan. #t abo%t 1/:15 #.M o( t$e (ollo,ing !a' 7%l' / 1881 t$e' &rocee!e! to t$e Bagac to,n &laBa ,$ere t$e' constit%te! t$emselves into a =re&arator' -ecall #ssembl' to initiate t$e recall election o( &etitioner Garcia. 2$e =-# &rom%lgate! -esol%tion 1 (or t$e recall o( t$e inc%mbent &rovincial governor Garcia (or loss o( con(i!ence. =etitioners (ile! ,it$ t$e COM3L3C a &etition to !en' !%e co%rse to sai! -esol%tion on t$e gro%n! t$at t$e =-#C (aile! to com&l' ,it$ t$e "s%bstantive an! &roce!%ral re.%irement" lai! !o,n in )ection 75 o( t$e LGC. 2$e COM3L3C !ismisse! t$e &etition an! sc$e!%le! t$e recall elections (or t$e &osition o( Governor o( Bataan. =etitioners t$en (ile! ,it$ t$e )C a &etition (or certiorari an! &ro$ibition ,it$ ,rit o( &reliminar' in9%nction to ann%l t$e sai! -esol%tion o( t$e res&on!ent COM3L3C. *ss%es: 1. 6ON section 75 o( -.#. 71G5 inso(ar as it allo,s a &re&arator' recall assembl' initiate t$e recall o( local elective o((icials is constit%tional -ecall is a mo!e o( removal o( a &%blic o((icer b' t$e &eo&le be(ore t$e en! o( $is term o( o((ice. 2$e &eo&leHs &rerogative to remove a &%blic o((icer is an inci!ent o( t$eir sovereign &o,er an! in t$e absence o( constit%tional restraint t$e &o,er is im&lie! in all governmental o&erations. )%c$ &o,er $as been $el! to be in!is&ensable (or t$e &ro&er a!ministration o( &%blic a((airs. Not %n!eserve!l' it is (re.%entl' !escribe! as a (%n!amental rig$t o( t$e &eo&le in a re&resentative !emocrac'. =: t$e rig$t to recall !oes not e4ten! merel' to t$e &rerogative o( t$e electorate to recon(irm or ,it$!ra, t$eir con(i!ence on t$e o((icial so%g$t to be recalle! at a s&ecial election. )%c$ &rerogative necessaril' incl%!es t$e sole an! e4cl%sive rig$t to !eci!e on ,$et$er to initiate a recall &rocee!ings or not. 2$ere is not$ing in t$e Constit%tion t$at ,ill remotel' s%ggest t$at t$e &eo&le $ave t$e "sole an! e4cl%sive rig$t to !eci!e on ,$et$er to initiate a recall &rocee!ing." 2$e Constit%tion !i! not &rovi!e (or an' mo!e let alone a single mo!e o( initiating recall elections. Neit$er !i! it &ro$ibit t$e a!o&tion o( m%lti&le mo!es o( initiating recall elections. 2$e man!ate given b' section 1 o( #rticle J o( t$e Constit%tion is (or Congress to "enact a LGC ,$ic$ s$all &rovi!e (or a more res&onsive an! acco%ntable local government str%ct%re t$ro%g$ a s'stem o( !ecentraliBation ,it$ e((ective mec$anisms o( recall initiative an! re(eren!%m . . ." B' t$is constit%tional man!ate Congress ,as clearl' given t$e &o,er to c$oose t$e e((ective mec$anisms o( recall as its !iscernment !ictates. 2$e &o,er given ,as to select ,$ic$ among t$e means an! met$o!s o( initiating recall elections are e((ective to carr' o%t t$e 9%!gment o( t$e electorate. Congress ,as not straig$t9ac+ete! to one &artic%lar mec$anism o( initiating recall elections. 6$at t$e
/CC

Constit%tion sim&l' re.%ire! is t$at t$e mec$anisms o( recall ,$et$er one or man' to be c$osen b' Congress s$o%l! be e((ective. @sing its constit%tionall' grante! !iscretion Congress !eeme! it ,ise to enact an alternative mo!e o( initiating recall elections to s%&&lement t$e (ormer mo!e o( initiation b' !irect action o( t$e &eo&le. Congress $as ma!e its c$oice as calle! (or b' t$e Constit%tion an! it is not t$e &rerogative o( t$is Co%rt to s%&&lant t$is 9%!gment. 2$e c$oice ma' be erroneo%s b%t even t$en t$e reme!' against a ba! la, is to see+ its amen!ment or re&eal b' t$e legislative. B' t$e &rinci&le o( se&aration o( &o,ers it is t$e legislative t$at !etermines t$e necessit' a!e.%ac' ,is!om an! e4&e!ienc' o( an' la,. 6ON in &assing -esol%tion 1 t$e Bataan =re&arator' -ecall #ssembl' !i! not onl' initiate t$e &rocess o( recall b%t $a! !e (acto recalle! &etitioner Garcia (rom o((ice a &o,er reserve! to t$e &eo&le alone. =: 2$e initiation o( a recall t$ro%g$ t$e =-# e((ectivel' s$ortens an! en!s t$e term o( t$e inc%mbent local o((icials. 2$e =-# resol%tion o( recall is t$e re call itsel(. =etitioners $ave misconstr%e! t$e nat%re o( t$e initiator' &rocess o( recall b' t$e =-#C. 2$e' $ave embrace! t$e vie, t$at initiation b' t$e =-#C is not initiation b' t$e &eo&le. 2$is is a misim&ression (or initiation b' t$e =-#C is also initiation b' t$e &eo&le albeit !one in!irectl' t$ro%g$ t$eir re&resentatives. *t is not constit%tionall' im&ermissible (or t$e &eo&le to act t$ro%g$ t$eir electe! re&resentatives. More (ar o%t is &etitionersH stance t$at a =-# resol%tion o( recall is t$e recall itsel(. *t cannot be serio%sl' !o%bte! t$at a =-# resol%tion o( recall merel' starts t$e &rocess. *t is &art o( t$e &rocess b%t is not t$e ,$ole &rocess. 2$is o%g$t to be sel( evi!ent (or a =-# resol%tion o( recall t$at is not s%bmitte! to t$e COM3L3C (or vali!ation ,ill not recall its s%b9ect o((icial. Li+e,ise a =-# resol%tion o( recall t$at is re9ecte! b' t$e &eo&le in t$e election calle! (or t$e &%r&ose bears no e((ect ,$atsoever. 2$e initiator' resol%tion merel' sets t$e stage (or t$e o((icial concerne! to a&&ear be(ore t$e trib%nal o( t$e &eo&le so $e can 9%sti(' ,$' $e s$o%l! be allo,e! to contin%e in o((ice. Be(ore t$e &eo&le ren!er t$eir sovereign 9%!gment t$e o((icial concerne! remains in o((ice b%t $is rig$t to contin%e in o((ice is s%b9ect to .%estion. 2$is is clear in section 7/ o( t$e LGC ,$ic$ states t$at "t$e recall o( an elective local o((icial s$all be e((ective onl' %&on t$e election an! &roclamation o( a s%ccessor in t$e &erson o( t$e can!i!ate receiving t$e $ig$est n%mber o( votes cast !%ring t$e election on recall. /. 6ON t$e la, is violative o( t$e 3.%al =rotection Cla%se. # care(%l rea!ing o( t$e la, $o,ever ,ill inel%ctabl' s$o, t$at it !oes not give an as'mmetrical treatment to locall' electe! o((icials belonging to t$e &olitical minorit'. First to be consi!ere! is t$e &oliticall' ne%tral com&osition o( t$e &re&arator' recall assembl'. )ec. 75 ;b< o( t$e Co!e. @n!er t$e la, all ma'ors viceDma'ors an! sangg%niang members o( t$e m%nici&alities an! com&onent cities are ma!e members o( t$e &re&arator' recall assembl' at t$e &rovincial level. *ts members$i& is not a&&ortione! to &olitical &arties. No signi(icance is given to t$e &olitical a((iliation o( its members. )econ!l' t$e &re&arator' recall assembl' at t$e &rovincial level incl%!es all t$e electe! o((icials in t$e &rovince concerne!. Consi!ering t$eir n%mber t$e greater &robabilit' is t$at no one &olitical &art' can control its ma9orit'. 2$ir!l' sec. G8 o( t$e Co!e &rovi!es t$at t$e onl' gro%n! to recall a locall' electe! &%blic o((icial is loss o( con(i!ence o( t$e &eo&le. 2$e members o( t$e =-#C are in t$e =-#C not in re&resentation o( t$eir &olitical &arties b%t as re&resentatives o( t$e &eo&le. B' necessar' im&lication loss o( con(i!ence cannot be &remise! on mere !i((erences in &olitical &art' a((iliation. *n!ee! o%r Constit%tion enco%rages m%ltiD&art' s'stem (or t$e e4istence o( o&&osition &arties is in!is&ensable to t$e gro,t$ an! n%rt%re o( !emocratic s'stem. Clearl' t$en t$e la, as cra(te! cannot be (a%lte! (or !iscriminating against local o((icials belonging to t$e minorit'. 2$e (ear t$at a &re&arator' recall assembl' ma' be !ominate! b' a &olitical &art' an! t$at it ma' %se its &o,er to initiate t$e recall o( o((icials o( o&&osite &olitical &ers%asions es&eciall' t$ose belonging to t$e minorit' is not a gro%n! to stri+e !o,n t$e la, as %nconstit%tional. 2o be s%re t$is arg%ment $as long been in !is%se (or t$ere can be no esca&e (rom t$e realit' t$at all &o,ers are s%sce&tible o( ab%se. 2$e mere &ossibilit' o( ab%se cannot $o,ever in(irm &er se t$e grant o( &o,er to an in!ivi!%al or entit'. Moreover t$e la, instit%te! sa(eg%ar!s to ass%re t$at t$e
/.
/CG

initiation o( t$e recall &rocess b' a &re&arator' recall assembl' ,ill not be corr%&te! b' e4traneo%s in(l%ences. 2$ere is onl' one gro%n! (or t$e recall o( local government o((icials: loss o( con(i!ence. 2$is means t$at t$e &eo&le ma' &etition or t$e =re&arator' -ecall #ssembl' ma' resolve to recall an' local elective o((icials ,it$o%t s&eci('ing an' &artic%lar gro%n! e4ce&t loss o( con(i!ence. 2$ere is no nee! (or t$em to bring %& an' c$arge o( ab%se or corr%&tion against t$e local elective o((icials ,$o are t$e s%b9ect o( an' recall &etition. 3var!one vs. Commission on 3lections: "loss o( con(i!ence" as a gro%n! (or recall is a &olitical .%estion. *n t$e ,or!s o( t$e Co%rt ",$et$er or not t$e electorate o( t$e m%nici&alit' o( )%lat $as lost con(i!ence in t$e inc%mbent ma'or is a &olitical .%estion. 6ON t$e resol%tion o( t$e members o( t$e =-# s%bverte! t$e ,ill o( t$e electorate o( t$e &rovince o( Bataan ,$o electe! &etitioner Garcia ,it$ a ma9orit' o( 1/ C55 votes. #gain t$e contention &rocee!s (rom t$e erroneo%s &remise t$at t$e resol%tion o( recall is t$e recall itsel(. *t re(%ses to recogniBe t$e realit' t$at t$e resol%tion o( recall is a mere &ro&osal to t$e electorate o( Bataan to s%b9ect &etitioner to a ne, test o( (ait$. 2$e &ro&osal ,ill still be &asse! %&on b' t$e sovereign electorate o( Bataan. #s t$is 9%!gment $as 'et to be e4&resse! it is &remat%re to concl%!e t$at t$e sovereign ,ill o( t$e electorate o( Bataan $as been s%bverte!. &revent t$e $ol!ing o( t$e recall election &etitioner (ile! be(ore t$e -2C a &etition (or in9%nction. 2$e -2C iss%e! a 2-O. #(ter con!%cting a s%mmar' $earing t$e trial co%rt li(te! t$e restraining or!er !ismisse! t$e &etition an! re.%ire! &etitioner an! $is co%nsel to e4&lain ,$' t$e' s$o%l! not be cite! (or contem&t (or misre&resenting t$at t$e baranga' recall election ,as ,it$o%t COM3L3C a&&roval. *n a resol%tion !ate! 7an%ar' C 188G t$e COM3L3C (or t$e t$ir! time reDsc$e!%le! t$e recall election on 7an%ar' 11 188GA $ence t$e instant &etition (or certiorari ,it$ %rgent &ra'er (or in9%nction. On 7an%ar' 1/ 188G t$e Co%rt iss%e! a 2-O an! re.%ire! t$e O)G to comment on t$e &etition. *n vie, o( t$e O)Gl>s mani(estation maintaining an o&inion a!verse to t$at o( t$e COM3L3C t$e latter t$ro%g$ its la, !e&artment (ile! t$e re.%ire! comment. =etitioner t$erea(ter (ile! a re&l'. *ss%e: 6ON t$e recall election ma' be barre! b' t$e )M elections. )ection 70 ;b< LGC: no recall s$all ta+e &lace ,it$in one ;1< 'ear (rom t$e !ate o( t$e o((icial>s ass%m&tion to o((ice or one ;1< 'ear imme!iatel' &rece!ing a reg%lar local election =: t$e sc$e!%le! 7an%ar' 11 188G recall election is no, barre! as t$e )M< election ,as set on t$e (irst Mon!a' o( Ma' 188G. =etitioner maintains t$at as t$e )M election is a reg%lar local election $ence no recall election can be $a! (or barel' (o%r mont$s se&arate t$e )M election (rom t$e recall election. *t is a r%le in stat%tor' constr%ction t$at ever' &art o( t$e stat%te m%st be inter&rete! ,it$ re(erence to t$e conte4t i.e. t$at ever' &art o( t$e stat%te m%st be consi!ere! toget$er ,it$ t$e ot$er &arts an! +e&t s%bservient to t$e general intent o( t$e ,$ole enactment. 2$e evi!ent intent o( )ection 70 is to s%b9ect an elective local o((icial to recall election once !%ring $is term o( o((ice. =aragra&$ ;b< constr%e! toget$er ,it$ &aragra&$ ;a< merel' !esignates t$e &erio! ,$en s%c$ elective local o((icial ma' be s%b9ect o( a recall election t$at is !%ring t$e secon! 'ear o( $is term o( o((ice. 2$%s s%bscribing to &etitioner>s inter&retation o( t$e &$rase reg%lar local election to incl%!e t$e )M election ,ill %n!%l' circ%mscribe t$e novel &rovision o( t$e LGC on recall a mo!e o( removal o( &%blic o((icers b' initiation o( t$e &eo&le be(ore t$e en! o( $is term. #n! i( t$e )M election ,$ic$ is set b' -.#. No. 7858 to be $el! ever' t$ree 'ears (rom Ma' 188G ,ere to be !eeme! ,it$in
/.
Garcia v. COM%L%C /supra- see p.D41 Paras v. COM%L%C Facts: =aras is t$e inc%mbent =%nong Baranga' o( =%la Cabanat%an Cit' ,$o ,on !%ring t$e last reg%lar baranga' election in 1880. # &etition (or $is recall as =%nong Baranga' ,as (ile! b' t$e registere! voters o( t$e baranga'. #cting on t$e &etition (or recall COM3L3C resolve! to a&&rove t$e &etition sc$e!%le! t$e &etition signing on October 10 188C an! set t$e recall election on November 11 188C. #t least /8.15Y o( t$e registere! voters signe!. 2$e COM3L3C $o,ever !e(erre! t$e recall election in vie, o( &etitioner>s o&&osition. On December G 188C t$e COM3L3C set ane, t$e recall election t$is time on December 1G 188C. 2o
/C7

t$e &%rvie, o( t$e &$rase Ereg%lar local electionF as erroneo%sl' insiste! b' &etitioner t$en no recall election can be con!%cte! ren!ering in%tile t$e recall &rovision o( t$e LGC. *n t$e inter&retation o( a stat%te t$e Co%rt s$o%l! start ,it$ t$e ass%m&tion t$at t$e legislat%re inten!e! to enact an e((ective la, an! t$e legislat%re is not &res%me! to $ave !one a vain t$ing in t$e enactment o( a stat%te. #n inter&retation s$o%l! i( &ossible be avoi!e! %n!er ,$ic$ a stat%te or &rovision being constr%e! is !e(eate! or as ot$er,ise e4&resse! n%lli(ie! !estro'e! emasc%late! re&eale! e4&laine! a,a' or ren!ere! insigni(icant meaningless ino&erative or n%gator'. *t is li+e,ise a basic &rece&t in stat%tor' constr%ction t$at a stat%te s$o%l! be inter&rete! in $armon' ,it$ t$e Constit%tion. 2$%s t$e inter&retation o( )ection 70 o( t$e LGC s&eci(icall' &aragra&$ ;b< t$ereo( s$o%l! not be in con(lict ,it$ t$e Constit%tional man!ate o( )ection 1 o( #rticle J o( t$e Constit%tion to enact a LGC ,$ic$ s$all &rovi!e (or a more res&onsive an! acco%ntable local government str%ct%re instit%te! t$ro%g$ a s'stem o( !ecentraliBation ,it$ e((ective mec$anisms o( recall initiative an! re(eren!%m. 2$e s&irit rat$er t$an t$e letter o( a la, !etermines its constr%ctionA $ence a stat%te as in t$is case m%st be rea! accor!ing to its s&irit an! intent. -ecall election is &otentiall' !isr%&tive o( t$e normal ,or+ing o( t$e local government %nit necessitating a!!itional e4&enses $ence t$e &ro$ibition against t$e con!%ct o( recall election one 'ear imme!iatel' &rece!ing t$e reg%lar local election. 2$e &roscri&tion is !%e to t$e &ro4imit' o( t$e ne4t reg%lar election (or t$e o((ice o( t$e local elective o((icial concerne!. 2$e electorate co%l! c$oose t$e o((icial>s re&lacement in t$e sai! election ,$o certainl' $as a longer ten%re in o((ice t$an a s%ccessor electe! t$ro%g$ a recall election. *t ,o%l! t$ere(ore be more in +ee&ing ,it$ t$e intent o( t$e recall &rovision o( t$e Co!e to constr%e reg%lar local election as one re(erring to an election ,$ere t$e o((ice $el! b' t$e local elective o((icial so%g$t to be recalle! ,ill be conteste! an! be (ille! b' t$e electorate.
Nevert$eless recall at t$is time is no longer &ossible

beca%se o( t$e limitation state! %n!er )ection 70 ;b< o( t$e Co!e consi!ering t$at t$e ne4t reg%lar election involving t$e baranga' o((ice concerne! is barel' seven ;7< mont$s a,a' t$e same $aving been sc$e!%le! on Ma' 1887. Malonzo v. COM%L%C Facts: MalonBo ,as !%l' electe! as Ma'or in t$e elections $el! on Ma' 8 188C ,inning over (ormer ma'or #sistio. Barel' one 'ear into $is term &etitionerHs o((ice as Ma'or ,as &%t to serio%s .%estion ,$en on 7%l' 7 188G 1 5C7 =%nong Baranga's an! )angg%niang Baranga' members an! )angg%niang Mabataan c$airmen constit%ting a ma9orit' o( t$e members o( t$e =re&arator' -ecall #ssembl' o( t$e Cit' o( Caloocan met an! %&on !eliberation an! election vote! (or t$e a&&roval o( =re&arator' -ecall #ssembl' -esol%tion No. 51D8G e4&ressing loss o( con(i!ence in Ma'or MalonBo an! calling (or t$e initiation o( recall &rocee!ings against $im. 2oget$er ,it$ relevant !oc%ments =-# -esol%tion No. 51D8G ,as (ile! ,it$ t$e COM3L3C (or a&&ro&riate action. *n res&onse Ma'or MalonBo (ile! a =etition ,it$ t$e res&on!ent Commission alleging &rinci&all' t$at t$e recall &rocess ,as !e(icient in (orm an! s%bstance an! t$ere(ore illegall' initiate!. 2$e COM3L3C (o%n! t$e &etition !evoi! o( merit an! !eclare! t$e recall &rocee!ings to be in or!er. MalonBo (ile! a =etition (or Certiorari 6it$ =ra'er For 2em&orar' -estraining Or!er an! #&&lication (or 6rit o( =reliminar' *n9%nction. )C iss%e! resol%tion or!ering t$e res&on!ent COM3L3C to cease an! !esist (rom &rocee!ing ,it$ t$e recall election &ro9ecte! on December 10 188G an! !irecting t$e res&on!ents to (ile t$eir res&ective Comments. *ss%e: 1. 6ON t$e re.%irements (or t$e $ol!ing o( a recall election ,ere !%l' com&lie! ,it$. 2$e matter o( vali!it' o( notices to t$e members o( t$e =re&arator' -ecall #ssembl' ,as s%((icientl' consi!ere! b' t$e res&on!ent Commission as in res&onse to &etitionerHs re.%est (or a tec$nical e4amination o( t$e recall !oc%ments t$e COM3L3C !irecte! its 3lection -ecor!s an! )tatistics De&artment ;3-)D< to resolve t$e matter o( notices sent to t$e =re&arator' -ecall #ssembl' members. 2$e 3-)D in
/C8

t%rn &er(orme! its tas+ an! re&orte! its (in!ings to t$e COM3L3C. 3-)D re&orte! t$at t$ere ,ere a total o( 1 8/7 notices sent some members being serve! t,o or t$ree notices. 2$e Notices ,ere sent in t$ree mo!esA =ersonal registere! mail an! b' co%rier an! t$e' ,ere in t$e name o( t$e =-# member an! a!!resse! at $is resi!ence or o((ice o( recor!. =ersonal services ,ere ac+no,le!ge! b' recei&ts signe! i( not b' t$e a!!ressee $imsel( t$en as in!icate! t$ereon b' $is or $er s&o%se nearest relative or a &erson o( s%((icient !iscretion in t$e memberHs resi!ence or o((ice. )ervice b' registere! mail ,as evince! b' t$e ret%rn car! !%l' signe! b' t$e a!!ressee or b' &ersons acting (or $im. 2$ere ,ere instances ,$en notices ,ere serve! b%t ,ere re(%se! t$is (act note! in t$e ac+no,le!gment recei&t b' t$e server an! $is ,itnesses. 2$e circ%mstances being t$%s ,e $ol! t$at t$ere ,as com&lete service o( t$e notices as contem&late! in )ection 8 -%le 11 o( t$e -%les o( Co%rt ,$ic$ &rovi!es: )ection 8 D Com&leteness o( )ervice D =ersonal service is com&lete %&on !eliver'. )ervice b' or!inar' mail is com&lete %&on t$e e4&iration o( (ive ;C< !a's a(ter mailing %nless t$e co%rt ot$er,ise &rovi!esA )ervice b' registere! mail is com&lete %&on act%al recei&t b' t$e a!!resseeA b%t i( $e (ails to claim $is mail (rom t$e &ost o((ice ,it$in (ive ;C< !a's (rom t$e !ate o( (irst notice o( t$e &ostmaster service s$all ta+e e((ect at t$e e4&iration o( s%c$ time.H 2$at it ,as #le4 Davi! =resi!ent o( t$e L*G# ng mga Baranga' ,$o sent t$e notices is o( no moment. 6e $a! earlier !etermine! t$at as member o( t$e =-# $e can legall' e4ercise t$e &rerogatives attac$e! to $is members$i& in t$e =re&arator' -ecall #ssembl' sen!ing notices to t$e ot$er members o( its sc$e!%le! convening. *t is evi!ent (rom t$e (oregoing an! t$ere(ore t$e Commission so $ol!s t$at t$e re.%irements o( notice $a! been (%ll' com&lie! ,it$. 2$e iss%e o( &ro&riet' o( t$e notices sent to t$e =-# members is (act%al in nat%re an! t$e !etermination o( t$e same is t$ere(ore a (%nction o( t$e COM3L3C. *n t$e absence o( &atent error or serio%s inconsistencies in t$e (in!ings t$e Co%rt s$o%l! not !ist%rb t$e same. 2$e (act%al (in!ings o( t$e COM3L3C base! on its o,n assessments an! !%l' s%&&orte! b' gat$ere! evi!ence are concl%sive %&on t$e co%rt more so in t$e absence o( a s%bstantiate! attac+ on t$e vali!it' o( t$e same. 6ON t$e initiation o( t$e recall &rocee!ings ,as in(irm since it ,as convene! b' t$e Liga ng mga Baranga's. NO. 2$e Liga ng mga Baranga' is %n!o%bte!l' an entit' !istinct (rom t$e =re&arator' -ecall #ssembl'. *t 9%st so $a&&ens t$at t$e &ersonalities re&resenting t$e baranga's in t$e Liga are t$e ver' members o( t$e =re&arator' -ecall #ssembl' t$e ma9orit' o( ,$om met on 7%l' 7 188G an! vote! in (avor o( t$e resol%tion calling (or t$e recall o( Ma'or MalonBo a(ter !eliberation re&orte! in t$e recor! in accor!ance ,it$ t$e e4isting la,. 2$%s t$e =%nong Baranga's an! )angg%niang Baranga' members convene! an! vote! as members o( t$e =re&arator' -ecall #ssembl' o( t$e Cit' o( Caloocan an! not as members o( t$e Liga ng mga Baranga'. 2$e recall &rocee!ings t$ere(ore cannot be !enie! merit on t$is gro%n!. COM3L3C: "2$e Min%tes o( t$e session o( t$e =re&arator' #ssembl' in!icate! t$at t$ere ,as a session $el!. #tten!ees constit%te t$e ma9orit' o( all t$e members o( t$e =re&arator' #ssembl' as ,e s$all later on establis$. -%les o( &roce!%re sim&le t$e' ma' be ,ere (orm%late!. Deliberations ,ere con!%cte! on t$e main iss%e ,$ic$ ,as t$at o( &etitionerHs recall. 2$e members ,ere given t$e o&&ort%nit' to artic%late on t$eir resolve abo%t t$e matter. More im&ortantl' t$eir sentiments ,ere e4&resse! t$ro%g$ t$eir votes signi(ie! b' t$eir signat%res an! t$%mbmar+s a((i4e! to t$e -esol%tion. No &roo( ,as a!!%ce! b' =etitioner to s%bstantiate $is claim t$at t$e signat%res a&&earing t$ereon re&resente! a ca%se ot$er t$an t$at o( a!o&ting t$e resol%tion. 2$e la, on recall !i! not &rescribe an elaborate &rocee!ing. Neit$er !i! it !eman! a s&eci(ic &roce!%re. 6$at is (%n!amental is com&liance ,it$ t$e &rovision t$at t$ere s$o%l! be a session calle! (or t$e &%r&ose o( initiating recall &rocee!ings atten!e! b' a ma9orit' o( all t$e members o( t$e &re&arator' recall assembl' in a &%blic &lace an! t$at t$e resol%tion res%lting (rom s%c$ assembl' be a!o&te! b' a ma9orit' o( all t$e =-# members." 2$e c$arges o( gra(t an! corr%&tion violence an! irreg%larities be(ore an! !%ring t$e session o( t$e &re&arator' recall assembl' are largel' %ncorroborate! an!
/.
/C8

cannot overri!e t$e s%bstantiate! (in!ings o( t$e res&on!ent COM3L3C. Clau io v. COM%L%C Facts: 7ovito O. Cla%!io ,as t$e !%l' electe! ma'or o( =asa' Cit' in t$e Ma' 11 1888 elections. He ass%me! o((ice on 7%l' 1 1888. )ometime !%ring t$e secon! ,ee+ o( Ma' 1888 t$e c$airs o( several baranga's in =asa' Cit' gat$ere! to !isc%ss t$e &ossibilit' o( (iling a &etition (or recall against Ma'or Cla%!io (or loss o( con(i!ence. On Ma' 18 1888 at t$e resi!ence o( baranga' c$air Ben9amin Lim 7r. in Baranga' 11 Zone 0 =asa' Cit' several baranga' c$airs (orme! an a! $oc committee (or t$e &%r&ose o( convening t$e =-#. -ic$ar! #!vinc%la &rivate res&on!ent in G.-. No. 105CG5 an! &etitioner in G.-. No. 105710 ,as !esignate! c$air. On Ma' /8 1888 1 571 members o( t$e =-# com&ose! o( baranga' c$airs +aga,a!s an! sangg%niang +abataan c$airs o( =asa' Cit' a!o&te! -esol%tion No. 51 )D1888 entitle! -3)OL@2*ON 2O *N*2*#23 2H3 -3C#LL OF 7OK*2O O. CL#@D*O #) M#:O- OF =#)#: C*2: FO- LO)) OF CONF*D3NC3. *n a letter !ate! 7%ne /8 1888 #!vinc%la as c$air o( t$e =-# invite! t$e Ma'or KiceDMa'or )tation Comman!er an! t$irteen ;11< Co%ncilors o( =asa' Cit' to ,itness t$e (ormal s%bmission to t$e O((ice o( t$e 3lection O((icer on 7%l' / 1888 o( t$e &etition (or recall. #s sc$e!%le! t$e &etition (or recall ,as (ile! on 7%l' / 1888 accom&anie! b' an a((i!avit o( service o( t$e &etition on t$e O((ice o( t$e Cit' Ma'or. =%rs%ant to t$e r%les o( t$e COM3L3C co&ies o( t$e &etition ,ere &oste! on t$e b%lletin boar!s o( t$e local COM3L3C o((ice t$e Cit' Hall t$e =olice De&artment t$e &%blic mar+et at Liberta! )t. an! 2a(t #ven%e an! at t$e entrance o( t$e )ta. Clara C$%rc$ on =. B%rgos )t. all in =asa' Cit'. )%bse.%entl' a veri(ication o( t$e a%t$enticit' o( t$e signat%res on t$e resol%tion ,as con!%cte! b' Liga'a )ala'on t$e election o((icer (or =asa' Cit' !esignate! b' t$e COM3L3C. *n its resol%tion o( October 18 1888 t$e COM3L3C grante! t$e &etition (or recall an! !ismisse! t$e o&&ositions against it. Hence t$ese &etitions. Oral arg%ments ,ere $el! in t$ese cases in Bag%io Cit' on #&ril 0 /555 a(ter ,$ic$ t$e Co%rt b' t$e vote o( 8 to G o( its members 1 resolve! to !ismiss t$e &etition in G.-. No. 105CG5 (or lac+ o( s$o,ing t$at t$e COM3L3C committe! a grave ab%se o( !iscretion. On t$e ot$er $an! t$e Co%rt %nanimo%sl' !ismisse! t$e &etition in G.-. No. 105710 on t$e gro%n! t$at t$e iss%e raise! t$erein $a! become moot an! aca!emic. *ss%es: 1. 6ON t$e ,or! "-ecall" in =aragra&$ ;b< o( c70 o( t$e LGC *ncl%!es t$e Convening o( t$e =re&arator' -ecall #ssembl' an! t$e Filing b' it o( a -ecall -esol%tion. -ecall is a &rocess ,$ic$ begins ,it$ t$e convening o( t$e &re&arator' recall assembl' or t$e gat$ering o( t$e signat%res at least /CY o( t$e registere! voters o( a local government %nit an! t$en &rocee!s to t$e (iling o( a recall resol%tion or &etition ,it$ t$e COM3L3C t$e veri(ication o( s%c$ resol%tion or &etition t$e (i4ing o( t$e !ate o( t$e recall election an! t$e $ol!ing o( t$e election on t$e sc$e!%le! !ate. Ho,ever as %se! in &aragra&$ ;b< o( c70 "recall" re(ers to t$e election itsel( b' means o( ,$ic$ voters !eci!e ,$et$er t$e' s$o%l! retain t$eir local o((icial or elect $is re&lacement. )everal reasons can be cite! in s%&&ort o( t$is concl%sion. c70 !eals ,it$ restrictions on t$e &o,er o( recall. *t is in (act entitle! "Limitations on -ecall." On t$e ot$er $an! cG8 &rovi!es t$at "t$e &o,er o( recall . . . s$all be e4ercise! b' t$e registere! voters o( a local government %nit to ,$ic$ t$e local elective o((icial belongs." )ince t$e &o,er veste! on t$e electorate is not t$e &o,er to initiate recall &rocee!ings b%t t$e &o,er to elect an o((icial into o((ice t$e limitations in c70 cannot be !eeme! to a&&l' to t$e entire recall &rocee!ings. *n ot$er ,or!s t$e term "recall" in &aragra&$ ;b< re(ers onl' to t$e recall election e4cl%!ing t$e convening o( t$e =-# an! t$e (iling o( a &etition (or recall ,it$ t$e COM3L3C or t$e gat$ering o( t$e signat%res o( at least /C Y o( t$e voters (or a &etition (or recall. 2$%s t$ere ma' be several =-#s $el! or &etitions (or recall (ile! ,it$ t$e COM3L3C S t$ere is no legal limit on t$e n%mber o( times s%c$ &rocesses ma' be resorte! to. 2$ese are merel' &reliminar' ste&s (or t$e &%r&ose o( initiating a recall. 2$e limitations in c70 a&&l' onl' to t$e e4ercise o( t$e &o,er o( recall ,$ic$ is veste! in t$e registere! voters. *t is t$is S an! not merel' t$e &reliminar' ste&s re.%ire! to be ta+en to initiate a recall S ,$ic$ &aragra&$ ;b< o( c70 see+s to limit b' &rovi!ing t$at no recall s$all ta+e &lace ,it$in one 'ear (rom t$e !ate o( ass%m&tion o( o((ice o( an elective local o((icial. Garcia v. COM3L3C: ,$ere t,o ob9ections ,ere raise! against t$e legalit' o( =-#s: ;1< t$at even t$e &o,er to
/G5

initiate recall &rocee!ings is t$e sole &rerogative o( t$e electorate ,$ic$ cannot be !elegate! to =-#s an! ;/< t$at b' vesting t$is &o,er in a =-# t$e la, in e((ect %nconstit%tionall' a%t$oriBes it to s$orten t$e term o( o((ice o( inc%mbent elective local o((icials. Bot$ ob9ections ,ere !ismisse! on t$e gro%n! t$at t$e $ol!ing o( a =-# is not t$e recall itsel(. 6it$ res&ect to t$e (irst ob9ection it ,as $el! t$at it is t$e &o,er to recall an! not t$e &o,er to initiate recall t$at t$e Constit%tion gave to t$e &eo&le. 6it$ res&ect to t$e secon! ob9ection it ,as $el! t$at a recall resol%tion "merel' sets t$e stage (or t$e o((icial concerne! be(ore t$e trib%nal o( t$e &eo&le so $e can 9%sti(' ,$' $e s$o%l! be allo,e! to contin%e in o((ice. UB%t %ntilV t$e &eo&le ren!er t$eir sovereign 9%!gment t$e o((icial concerne! remains in o((ice . . . ." *( t$ese &reliminar' &rocee!ings !o not &ro!%ce a !ecision b' t$e electorate on ,$et$er t$e local o((icial concerne! contin%es to en9o' t$e con(i!ence o( t$e &eo&le t$en t$e &ro$ibition in &aragra&$ ;b< against t$e $ol!ing o( a recall e4ce&t one 'ear a(ter t$e o((icialHs ass%m&tion o( o((ice cannot a&&l' to s%c$ &rocee!ings. 2$e secon! reason ,$' t$e term "recall" in &aragra&$ ;b< re(ers to recall election is to be (o%n! in t$e &%r&ose o( t$e limitation itsel(. 2$ere are t,o limitations in &aragra&$ ;b< on t$e $ol!ing o( recalls: ;1< t$at no recall s$all ta+e &lace ,it$in one 'ear (rom t$e !ate o( ass%m&tion o( o((ice o( t$e o((icial concerne! an! ;/< t$at no recall s$all ta+e &lace ,it$in one 'ear imme!iatel' &rece!ing a reg%lar local election. 2$e &%r&ose o( t$e (irst limitation is to &rovi!e a reasonable basis (or 9%!ging t$e &er(ormance o( an elective local o((icial. *n t$e Bo,er case cite! b' t$is Co%rt in #ngob%ng v. COM3L3C it ,as $el! t$at "2$e onl' logical reason ,$ic$ ,e can ascribe (or re.%iring t$e electors to ,ait one 'ear be(ore petitioning (or a recall election is to &revent &remat%re action on t$eir &art in voting to remove a ne,l' electe! o((icial be(ore $aving $a! s%((icient time to eval%ate t$e so%n!ness o( $is &olicies an! !ecisions." 2$e oneD'ear limitation ,as rec+one! as o( t$e (iling o( a &etition (or recall beca%se t$e M%nici&al Co!e involve! in t$at case e4&ressl' &rovi!e! t$at "no removal &etition s$all be (ile! against an' o((icer or %ntil $e $as act%all' $el! o((ice (or at least t,elve mont$s." B%t $o,ever t$e &erio! o( &ro$ibition is !etermine! t$e &rinci&le anno%nce! is t$at t$e &%r&ose o( t$e limitation is to &rovi!e a reasonable basis (or eval%ating t$e &er(ormance o( an elective local o((icial. Hence in t$is case as long as t$e election is $el! o%tsi!e t$e oneD'ear &erio! t$e &reliminar' &rocee!ings to initiate a recall can be $el! even be(ore t$e en! o( t$e (irst 'ear in o((ice o( a local o((icial. *t cannot be arg%e! t$at to allo, recall &rocee!ings to be initiate! be(ore t$e o((icial concerne! $as been in o((ice (or oneD'ear ,o%l! be to allo, $im to be 9%!ge! ,it$o%t s%((icient basis. #s alrea!' state! it is not t$e $ol!ing o( =-# nor t$e a!o&tion o( recall resol%tions t$at &ro!%ces a 9%!gment on t$e &er(ormance o( t$e o((icial concerne!A it is t$e vote o( t$e electorate in t$e election t$at !oes. 2$ere(ore as long as t$e recall election is not $el! be(ore t$e o((icial concerne! $as com&lete! one 'ear in o((ice $e ,ill not be 9%!ge! on $is &er(ormance &remat%rel'. 2$ir! to constr%e t$e term "recall" in &aragra&$ ;b< as incl%!ing t$e convening o( t$e =-# (or t$e &%r&ose o( !isc%ssing t$e &er(ormance in o((ice o( elective local o((icials ,o%l! be to %n!%l' restrict t$e constit%tional rig$t o( s&eec$ an! o( assembl' o( its members. 2$e &eo&le cannot 9%st be as+e! on t$e !a' o( t$e election to !eci!e on t$e &er(ormance o( t$eir o((icials. 2$e cr'stalliBation an! (ormation o( an in(orme! &%blic o&inion ta+es time. 2o $ol! t$ere(ore t$at t$e (irst limitation in &aragra&$ ;b< incl%!es t$e $ol!ing o( assemblies (or t$e e4c$ange o( i!eas an! o&inions among citiBens is to %n!%l' c%rtail one o( t$e most c$eris$e! rig$ts in a (ree societ'. *n!ee! it is ,rong to ass%me t$at s%c$ assemblies ,ill al,a's event%ate in a recall election. 2o t$e contrar' t$e' ma' res%lt in t$e e4&ression o( con(i!ence in t$e inc%mbent. =%no !issent: t$e &%r&ose o( t$e oneD'ear &erio! in &aragra&$ ;b< is to &rovi!e t$e local o((icial concerne! a "&erio! o( re&ose" !%ring ,$ic$ "U$isV attention s$o%l! not be !istracte! b' an' im&e!iment es&eciall' b' !ist%rbance !%e to &olitical &artisans$i&." @n(ort%natel' t$e la, cannot reall' &rovi!e (or a &erio! o( $one'moon or moratori%m in &olitics. From t$e !a' an elective o((icial ass%mes o((ice $is acts become s%b9ect to scr%tin' an! criticism an! it is not al,a's eas' to !etermine ,$en criticism o( $is &er(ormance
/G1

is &oliticall' motivate! an! ,$en it is not. 2$e onl' sa(eg%ar! against t$e bane(%l an! enervating e((ects o( &artisan &olitics is t$e goo! sense an! sel( restraint o( t$e &eo&le an! its lea!ers against s%c$ s$ortcomings o( o%r &olitical s'stem. # res&ite (rom &artisan &olitics ma' $ave t$e inci!ental e((ect o( &rovi!ing res&ite (rom &artisans$i& b%t t$at is not reall' t$e &%r&ose o( t$e limitation on recall %n!er t$e la,. 2$e limitation is onl' inten!e! to &rovi!e a s%((icient basis (or eval%ating an! 9%!ging t$e &er(ormance o( an electe! local o((icial. *n an' event it is arg%e! t$at t$e 9%!gments o( =-#s are not "as &oliticall' %nassailable as recalls initiate! !irectl' b' t$e &eo&le." 7%stice =%no cites t$e "embarrassing re&%!iation b' t$e &eo&le o( UMaloocan Cit'HsV =re&arator' -ecall #ssembl'" ,$en instea! o( o%sting Ma'or -e' MalonBo t$e' reelecte! $im. *t is no !is&aragement o( t$e =-# t$at in t$e ens%ing election t$e local o((icial ,$ose recall is so%g$t is act%all' reelecte!. La,s converting m%nici&alities into cities an! &rovi!ing (or t$e $ol!ing o( &lebiscites !%ring ,$ic$ t$e .%estion o( cit'$oo! is s%bmitte! to t$e &eo&le (or t$eir a&&roval are not al,a's a&&rove! b' t$e &eo&le. :et no one can sa' t$at Congress is not a goo! 9%!ge o( t$e ,ill o( t$e voters in t$e localit'. *n t$e case o( recall elections in Maloocan Cit' $a! it been s$o,n t$at t$e =-# ,as resorte! to onl' beca%se t$ose be$in! t$e move to o%st t$e inc%mbent ma'or (aile! to obtain t$e signat%res o( /CY o( t$e voters o( t$at cit' to a &etition (or $is recall t$ere ma' be some &la%sibilit' (or t$e claim t$at =-#s are not as goo! a ga%ge o( t$e &eo&leHs ,ill as are t$e /C Y o( t$e voters. -ecalls initiate! !irectl' b' /CY o( t$e registere! voters o( a local government %nit cannot be more re&resentative o( t$e sentiments o( t$e &eo&le t$an t$ose initiate! b' =-#s ,$ose members re&resent t$e entire electorate in t$e local government %nit. Koters ,$o !irectl' initiate recalls are 9%st as v%lnerable to &olitical mane%verings or mani&%lations as are t$ose com&osing =-#s. 2$e .%estion $ere is not ,$et$er recalls initiate! b' /CY o( t$e voters are better. 2$e iss%e is ,$et$er t$e oneD'ear &erio! o( limitation in &aragra&$ ;b< incl%!es t$e convening o( t$e =-#. Given t$at .%estion ,ill convening t$e =-# o%tsi!e t$is &erio! ma+e it an' more re&resentative o( t$e &eo&le as t$e &etition (ile! b' /CY o( t$e registere! voters is claime! to beT #s t$e recall election in =asa' Cit' is set on #&ril 1C /555 more t$an one 'ear a(ter &etitioner ass%me! o((ice as ma'or o( t$at cit' ,e $ol! t$at t$ere is no bar to its $ol!ing on t$at !ate. 6ON t$e =$rase "-eg%lar Local 3lection" in t$e )ame =aragra&$ ;b< o( c70 o( t$e LGC incl%!es t$e 3lection =erio! (or t$at -eg%lar 3lection or )im&l' t$e Date o( )%c$ 3lection. =: !ate set b' t$e COM3L3C (or t$e recall election is ,it$in t$e secon! &erio! o( &ro$ibition in &aragra&$ ;b<. He arg%es t$at t$e &$rase "reg%lar local elections" in &aragra&$ ;b< !oes not onl' mean "t$e !a' o( t$e reg%lar local election" ,$ic$ (or t$e 'ear /551 is Ma' 10 b%t t$e election &erio! as ,ell ,$ic$ is normall' at least (ort' (ive ;0C< !a's imme!iatel' be(ore t$e !a' o( t$e election. Hence $e conten!s t$at beginning Marc$ 15 /555 no recall election ma' be $el!. 2$is contention is %ntenable. 2$e la, is %nambig%o%s in &rovi!ing t$at "UnVo recall s$all ta+e &lace ,it$in . . . one ;1< 'ear imme!iatel' &rece!ing a reg%lar local election." Ha! Congress inten!e! t$is limitation to re(er to t$e cam&aign &erio! ,$ic$ &erio! is !e(ine! in t$e Omnib%s 3lection Co!e it co%l! $ave e4&ressl' sai! so. =>s inter&retation ,o%l! severel' limit t$e &erio! !%ring ,$ic$ a recall election ma' be $el!. #ct%all' beca%se no recall election ma' be $el! %ntil one 'ear a(ter t$e ass%m&tion o( o((ice o( an elective local o((icial &res%mabl' on 7%ne 15 (ollo,ing $is election t$e (ree &erio! is onl' t$e &erio! (rom 7%l' 1 o( t$e (ollo,ing 'ear to abo%t t$e mi!!le o( Ma' o( t$e s%ccee!ing 'ear. 2$is is a &erio! o( onl' nine mont$s an! 1C !a's more or less. 2o constr%e t$e secon! limitation in &aragra&$ ;b< as incl%!ing t$e cam&aign &erio! ,o%l! re!%ce t$is &erio! to eig$t mont$s. )%c$ an inter&retation m%st be re9ecte! beca%se it ,o%l! !evitaliBe t$e rig$t o( recall ,$ic$ is !esigne! to ma+e local government %nits "more res&onsive an! acco%ntable." *n!ee! t$ere is a !istinction bet,een election &erio! an! cam&aign &erio!. @n!er t$e Omnib%s 3lection Co!e %nless ot$er,ise (i4e! b' t$e COM3L3C t$e election &erio! commences ninet' ;85< !a's be(ore t$e !a' o( t$e election
/.
/G/

an! en!s t$irt' ;15< !a's t$erea(ter. 2$%s to (ollo, &etitionerHs inter&retation t$at t$e secon! limitation in &aragra&$ ;b< incl%!es t$e "election &erio!" ,o%l! emasc%late even more a vital rig$t o( t$e &eo&le. 6ON t$e -ecall -3)OL@2*ON ,as )igne! b' a Ma9orit' o( t$e =-# an! D%l' Keri(ie!. =: a ma9orit' o( t$e signat%res o( t$e members o( t$e =-# ,as not obtaine! beca%se 70 members !i! not reall' sign t$e recall resol%tion. #ccor!ing to &etitioner t$e 70 merel' signe! t$eir names on &ages 80D150 o( t$e resol%tion to signi(' t$eir atten!ance an! not t$eir conc%rrence. =etitioner claims t$at t$is is s$o,n b' t$e ,or! "#tten!ance" ,ritten b' $an! at t$e to& o( t$e &age on ,$ic$ t$e signat%res o( t$e 70 begin. 2$is contention $as no basis. 2o be s%re t$is claim is being raise! (or t$e (irst time in t$is case. *t ,as not raise! be(ore t$e COM3L3C in ,$ic$ t$e claim ma!e b' &etitioner ,as t$at some o( t$e names in t$e &etition ,ere !o%ble entries t$at some members $a! ,it$!ra,n t$eir s%&&ort (or t$e &etition an! t$at 6enceslao 2rini!a!Hs &en!ing election &rotest ,as a &re9%!icial .%estion ,$ic$ m%st (irst be resolve! be(ore t$e &etition (or recall co%l! be given !%e co%rse. #lt$o%g$ t$e ,or! "#tten!ance" a&&ears at t$e to& o( t$e &age it is a&&arent t$at it ,as ,ritten b' mista+e beca%se it ,as crosse! o%t b' t,o &arallel lines !ra,n across it. #&&arentl' it ,as mista+en (or t$e atten!ance s$eet ,$ic$ is a se&arate !oc%ment. *t is abs%r! to believe t$at t$e 70 members o( t$e =-# ,$o signe! t$e recall resol%tion signi(ie! t$eir atten!ance at t$e meeting t,ice. *t is more &robable to believe t$at t$e' signe! &ages 80D150 to signi(' t$eir conc%rrence in t$e recall resol%tion o( ,$ic$ t$e &ages in .%estion are &art. legal researc$ assistant in t$e W%eBon Cit' O((ice o( t$e Cit' #ttorne' (or Gross Miscon!%ct an! Dis$onest' allege!l' (or $aving torn o(( a &ortion o( 2rans(er Certi(icate o( 2itle No. /58/87 (rom t$e registr' boo+ o( W%eBon Cit' an! (or $aving &oc+ete! it. #(ter t$ree mont$s o( investigation t$en W%eBon Cit' Ma'or -o!rig%eB !ismisse! t$e sai! com&laint against t$e &etitioner (or ins%((icienc' o( evi!ence. Colo'an a&&eale! to t$e M)=B ,$ic$ (o%n! Men!eB g%ilt' as c$arge! an! !ismisse! (rom t$e service. )ai! !ecision ,as a((irme! b' t$e C)C on a&&eal. M- ;Colo'an not &ro&er &art' e4oneration b' t$e cit' ma'or is %na&&ealable &%rs%ant to )ection 17 &aragra&$ ;b< o( =.D. 857<: !enie! t$ere is not$ing in t$e sai! la, ,$ic$ &recl%!es an a&&eal (rom t$e !ecision o( t$e !isci&lining a%t$orities to !etermine among ot$ers ,$et$er t$e !ecision ren!ere! is s%&&orte! b' t$e (acts on recor! an! t$e la,. *ss%e: 6ON Men!eB $as t$e rig$t to a&&eal. -ig$t to a&&eal is merel' a stat%tor' &rivilege an! ma' be e4ercise! onl' in t$e manner an! in accor!ance ,it$ t$e &rovision o( la,. # c%rsor' rea!ing o( =.D. 857 ot$er,ise +no,n as "2$e =$ili&&ine Civil )ervice La," s$o,s t$at sai! la, !oes not contem&late a revie, o( !ecisions e4onerating o((icers or em&lo'ees (rom a!ministrative c$arges. )ection 17 &aragra&$ ;a<: 2$e Commission s$all !eci!e %&on a&&eal all a!ministrative !isci&linar' cases involving t$e im&osition o( a &enalt' o( s%s&ension (or more t$an t$irt' !a's or (ine in an amo%nt e4cee!ing t$irt' !a'sH salar' !emotion in ran+ or salar' or trans(er removal or !ismissal (rom o((ice. )ai! &rovision m%st be rea! toget$er ,it$ )ection 18 &aragra&$ ;a< o( =.D 85C ,$ic$ contem&lates: #&&eals ,$ere allo,able s$all be ma!e b' t$e &art' a!versel' a((ecte! b' t$e !ecision. 2$e &$rase "&art' a!versel' a((ecte! b' t$e !ecision" re(ers to t$e government em&lo'ee against ,$om t$e a!ministrative case is (ile! (or t$e &%r&ose o( !isci&linar' action ,$ic$ ma' ta+e t$e (orm o( s%s&ension !emotion in ran+ or salar' trans(er removal or !ismissal (rom o((ice. *n t$e instant case Colo'an ,$o (ile! t$e a&&eal cannot be consi!ere! an aggrieve! &art' beca%se $e is not t$e res&on!ent in t$e a!ministrative case belo,.
/.
A ormeo v. COM%L%C /supra- see p. 0ED1 (ocrates v. COM%L%C /supra- see p. 05C1 Men ez v. Civil (ervice Commission Facts: On 7%ne 7 1880 t$en #cting -egister o( Dee!s o( W%eBon Cit' Colo'an (ile! an a!ministrative com&laint against Men!eB a
/G1
Mabelle O. Nebres | Local Governments Case Digests =%rs%ant to )ection 17 &aragra&$ ;b< o( =.D. 857 t$e cit'
ma'or as $ea! o( t$e cit' government is em&o,ere! to en(orce 9%!gment ,it$ (inalit' on lesser &enalties li+e s%s&ension (rom ,or+ (or one mont$ an! (or(eit%re o( salar' e.%ivalent to one mont$ against erring em&lo'ees. B' in(erence or im&lication t$e reme!' o( a&&eal ma' be availe! o( onl' in a case ,$ere t$e res&on!ent is (o%n! g%ilt' o( t$e c$arges (ile! against $im. B%t ,$en t$e res&on!ent is e4onerate! o( sai! c$arges as in t$is case t$ere is no occasion (or a&&eal. Macalingcag an Carlos v. Chang &o,er o( t$e )ecretar' o( Finance to iss%e t$e Or!er o( =reventive )%s&ension. M-: C$ang raise! a ne, arg%ment b' invo+ing )ection 8 34ec%tive Or!er No. 18/ entitle! "Constit%ting t$e Metro&olitan Manila #%t$orit' &rovi!ing (or its &o,ers an! (%nctions an! (or ot$er &%r&oses." a&&lication (or a ,rit o( &reliminar' in9%nction grante!. 2C: res&on!ents &ermanentl' !esist (rom en(orcing t$e Or!er o( =reventive )%s&ension. Hence t$is &etition (or revie, on certiorari.)econ! Division o( t$is Co%rt: !enie! t$e &etition (or $aving been (ile! o%t o( time b%t t$e same ,as reinstate! in a resol%tion !ate! #&ril 1C 1881. *n t$e resol%tion !ate! 7%l' 15 1881 t$e )econ! Division o( t$is Co%rt gave !%e co%rse to t$e &etition an! re.%ire! bot$ &arties to (ile t$eir sim%ltaneo%s memoran!a. *ss%e: 1. 6ON t$e )ecretar' o( Finance $as 9%ris!iction to iss%e an Or!er o( =reventive )%s&ension against t$e acting m%nici&al treas%rer o( Ma+ati Metro Manila. =: t$e Or!er o( =reventive )%s&ension became e((ective %&on recei&t t$ereo( b' res&on!ent C$ang an! not %&on t$e !esignation o( an o((icerDinDc$arge to re&lace $imA t$at t$e Or!er o( =reventive )%s&ension !ate! October G 1888 became e((ective be(ore t$e iss%ance o( 34ec%tive Or!er No. 18/ an! t$ere(ore can no longer be en9oine! b' reason o( t$e allege! trans(er o( t$e &o,er to s%s&en! (rom t$e )ecretar' o( Finance to t$e =resi!ent o( t$e -e&%blic o( t$e =$ili&&ines an! t$at t$e &o,er to s%s&en! an! remove m%nici&al o((icials is not an inci!ent o( t$e &o,er to a&&oint. -: a government o((icer is not s%s&en!e! %ntil someone $as ass%me! t$e &ost an! t$e o((icer s%b9ect o( t$e s%s&ension or!er $as cease! &er(orming $is o((icial (%nctionA t$at t$e im&lementation o( t$e .%estione! s%s&ension or!er ,as overta+en b' t$e iss%ance o( 34ec%tive Or!er No. 18/ creating t$e Metro&olitan Manila #%t$orit' an! t$at t$e &o,er to !isci&line is veste! solel' on t$e &erson ,$o $as t$e &o,er to a&&oint. =reventive )%s&ension is governe! b' )ec. 01 o( =.D. 857 or t$e Civil )ervice La, ,$ic$ &rovi!es: )ec. 01. =reventive )%s&ension. S 2$e &ro&er !isci&lining a%t$orit' ma' &reventivel' s%s&en! an' s%bor!inate o((icer or em&lo'ee %n!er $is a%t$orit' &en!ing an investigation i( t$e c$arge against s%c$ o((icer or em&lo'ee involves !is$onest' o&&ression or grave miscon!%ct or neglect in t$e
Facts: On October G 1888 Carlos signe! a (ormal a!ministrative c$arge a&&rove! b' Macalincag (or !is$onest' neglect o( !%t' an! acts &re9%!icial to t$e best interest o( t$e service. *t ,as allege! t$at C$ang !isb%rse! (%n!s inviolation o( t$e Omnib%s 3lection Co!e inc%rre! cas$ over!ra(ts in violation o( )ections 01 an! 00 o( =D 077 an! )ection 0;1< o( =D 100C trans(erre! t$e amo%nt o( =1 877 08/.55 (rom t$e 2reas%rer?Cas$ierHs sa(e to t$e -ealt' 2a4 DivisionHs sa(e t$%s s%b9ecting sai! m%nici&al (%n!s to &ossible lossA an! t$at s$e contin%all' (aile! to remit to t$e B%rea% o( 2reas%r' t$e national collection. 2$e basis o( t$e (ormal c$arge b' &etitioner Carlos ,as t$e &reliminar' eval%ation o( t$e CO# -e&ort !ate! 7an%ar' 18 1888 an! t$e a((i!avitDcom&laints o( Co%ncilor -oberto Brillante !ate! #&ril /7 1888 an! Ma' /1 1888. On t$e same !ate October C 1888 &etitioner Macalincag iss%e! an Or!er o( =reventive )%s&ension against C$ang. #lso on October G 1888 &etitioner Macalincag sent a letter to t$e "Governor Metro Manila Commission S #ttn: t$e O((icerDinDC$arge MMC Finance O((ice " see+ing t$e im&lementation o( t$e Or!er o( =reventive )%s&ension !ate! October G 1888 an! recommen!ing t$at an O((icerDinD C$arge be imme!iatel' !esignate! (rom t$e ran+s o( .%ali(ie! M%nici&al 2reas%rers an! #ssistant M%nici&al 2reas%rers in Metro Manila. B' virt%e o( t$e sai! letter t$e O((icerDinDC$arge MMC Finance O((ice (%rnis$e! res&on!ent C$ang b' or!inar' mail ,it$ a co&' o( t$e Or!er o( =reventive )%s&ension also !ate! October G 1888. On November 15 1888 res&on!ent C$ang (ile! a &etition (or &ro$ibition ,it$ ,rit o( &reliminar' in9%nction be(ore t$e -egional 2rial Co%rt ;-2C< o( Ma+ati against &etitioners Macalincag an! Carlos. 2-O on &reventive s%s&ension grante!. 2C: !enie! C$ang a&&lication (or a ,rit o( &reliminar' in9%nction an! s%staine! t$e
/G0

&er(ormance o( !%t' or i( t$ere are reasons to believe t$at t$e res&on!ent is g%ilt' o( c$arges ,$ic$ ,o%l! ,arrant $is removal (rom service. @n!er t$e a(oresai! la, !esignation o( t$e re&lacement is not a re.%irement to give e((ect to t$e &reventive s%s&ension. LGC ;B= 117< )ec. 1CG. 23M=O-#-: D*)#B*L*2:. S *n t$e event o( inabilit' o( t$e treas%rer to !isc$arge t$e !%ties o( $is o((ice on acco%nt o( a tri& on o((icial b%siness absence on leave sic+ness s%s&ension or ot$er tem&orar' !isabilit' t$e assistant m%nici&al treas%rer or in $is absence t$e treas%r' o((icial ne4t in ran+ in t$e m%nici&alit' s$all !isc$arge t$e !%ties o( t$e o((ice s%b9ect to e4isting la,s. )ection /11;/<: @ntil ot$er,ise &rovi!e! b' la, not$ing in t$is co!e s$all be %n!erstoo! to amen! or re&eal t$e &ertinent &rovisions o( =.D. No. 8/0 an! B= /5 an! all &resi!ential !ecrees an! iss%ances relevant to Metro&olitan Manila an! t$e )angg%niang =am&oo+ o( -egions *J an! J**. Or!er o( =reventive )%s&ension o( res&on!ent C$ang became e((ective %&on $is recei&t t$ereo( ,$ic$ is &res%me! ,$en $e (ile! a com&laint in t$e trial co%rt &reventing t$e im&lementation o( s%c$ Or!er o( )%s&ension. Ot$er,ise state! t$e !esignation o( t$e OFF*C3-D*ND CH#-G3 to re&lace res&on!ent C$ang is immaterial to t$e e((ectivit' o( t$e latterHs s%s&ension. # contrar' vie, ,o%l! ren!er n%gator' t$e ver' &%r&ose o( &reventive s%s&ension. 6ON 3O18/ gave rise to t$e creation o( t$e Metro&olitan Manila #%t$orit' an! veste! in t$e =resi!ent o( t$e -e&%blic o( t$e =$ili&&ines t$e &o,er to a&&oint m%nici&al treas%rers in Metro Manila. )ec. 8. #ll cit' an! m%nici&al treas%rers m%nici&al assessors an! t$eir assistants as ,ell as ot$er o((icials ,$ose a&&ointment is c%rrentl' veste! %&on t$e Metro&olitan Manila Commission s$all be a&&ointe! b' t$e =resi!ent o( t$e =$ili&&ines %&on recommen!ation o( t$e Co%ncil s%b9ect to t$e Civil )ervice la, r%les an! reg%lations. Be(ore t$e &o,er to a&&oint t$e a(oresai! &%blic o((icials ,as veste! in t$e =rovincial 2reas%rers an! #ssessors o( t$e M%nici&alities concerne! %n!er =.D. No. 077 an! later trans(erre! to t$e Commissioner o( Finance %n!er =.D. No. 8/1 b%t %n!er bot$ !ecrees t$e &o,er o( a&&ointment ,as ma!e s%b9ect to Civil )ervice La,s an! t$e a&&roval o( t$e )ecretar' o( Finance. 2$e intention o( t$e a(oresai! legislations to (ollo, t$e Civil )ervice La,s -%les an! -eg%lations is %nmista+able. 2$e &o,er to !isci&line is s&eci(icall' veste! %n!er )ec. 17 o( =.D. No. 857 in $ea!s o( !e&artments agencies an! instr%mentalities &rovinces an! c$artere! cities ,$o $ave original 9%ris!iction to investigate an! !eci!e on matters involving !isci&linar' action. )tate! !i((erentl' t$e' are t$e &ro&er !isci&lining a%t$orit' re(erre! to in )ec. 01 o( t$e same la,.2$e O((ice o( t$e M%nici&al 2reas%rer is %n.%estionabl' %n!er t$e De&artment o( Finance as &rovi!e! (or in )ec. 1 =.D. No. 077. Hence t$e )ecretar' o( Finance is t$e &ro&er !isci&lining a%t$orit' to iss%e t$e &reventive s%s&ension or!er. More s&eci(icall' acting )ecretar' o( Finance Macalincag acte! ,it$in $is 9%ris!iction in iss%ing t$e a(oresai! or!er. 3ven ass%ming t$at t$e &o,er to a&&oint incl%!es t$e &o,er to !isci&line as arg%e! b' C$ang acting )ecretar' Macalincag as )ecretar' o( Finance is an alter ego o( t$e =resi!ent an! t$ere(ore it is ,it$in $is a%t$orit' as an alter ego to &reventivel' s%s&en! res&on!ent C$ang. (alalima v. Guingona /supra- see p.0D51 Garcia v. Pa3aro an the Cit# o! *agupan
/.
Facts: Garcia is a -even%e Collector a&&ointe! to t$at &osition b' t$en Cit' Ma'or Manaois. He ,as or!ere! s%s&en!e! b' Cit' 2reas%rer =a9aro (rom 7%ne 1 1885 to Marc$ 1C 188/ an! !irecte! t$e ,it$$ol!ing o( $is salar' beca%se o( t$e Formal C$arge (ile! against $im. =etitioner $as been rating @nsatis(actor' in $is &er(ormance (or several semesters ,$ic$ is t$e reason a UFormalV C$arge ,as (ile! against &etitioner receive! b' $im on 7%ne 1 1885 15:55 a.m. an! as a matter o( &roce!%re i( t$e c$arge is a ma9or o((ense b' civil service la,s $e ,as &reventivel' s%s&en!e! (or ninet' ;85< !a's also !%l' receive! b' Mr. Garcia on 7%ne 0 1885 at /:55 &.m. 2$en an investigation ,as sc$e!%le! an! a s%b&oena ,as iss%e! to Mr. Garcia to a&&ear an! testi(' on #%g%st 1C 1885 !%l' receive! b' $im on #%g%st 1 1885 8:CC. #gain Mr. Garcia !i! not #ns,er an! re(%se! to $onor t$e s%b&oena to s%bmit $imsel( (or investigation. )o $e &rocee!e! ,it$ e4D&arte
/GC

investigation an! gat$ere! an! s%bmitte! testimonies to s%&&ort t$e allegations in t$e Formal C$arge t$en s%bmitte! t$e res%lt o( t$eir (in!ings to t$e De&artment o( Finance (or !ecision. # Decision ,as &rom%lgate! b' t$e De&artment o( Finance on #%g%st 1 1881. 2$e matter o( &reventive s%s&ension o( Mr. Garcia ,as s%bmitte! to t$e -egional Director B%rea% o( Local Government Finance ,$ic$ ,as ](avorabl' a&&rove!> b' t$e -egional Director. C#: =a9aro ,as veste! ,it$ legal &o,er an! a%t$orit' to instit%te !isci&linar' action against s%bor!inate o((icers an! em&lo'ees. Hence t$is =etition. *ss%es: 1. 6ON t$e Cit' 2reas%rer ma' !isci&line Garcia. :3). %n!er t$e ol! an! t$e &resent LGCs a&&ointive o((icers an! em&lo'ees o( local government %nits are covere! b' t$e Civil )ervice La,A an! s%c$ r%les reg%lations an! ot$er iss%ances !%l' &rom%lgate! &%rs%ant t$ereto %nless ot$er,ise s&eci(ie!. Moreover t$e investigation an! t$e a!9%!ication o( a!ministrative com&laints against a&&ointive local o((icials an! em&lo'ees as ,ell as t$eir s%s&ension an! removal s$all be in accor!ance ,it$ t$e Civil )ervice La, an! r%les an! ot$er &ertinent la,s. #!ministrative Co!e o( 1887 s&eci(icall' Boo+ K on t$e civil service is t$e &rimar' la, governing a&&ointive o((icials an! em&lo'ees in t$e government. Gro%n!s (or !isci&lining: 1< ,$en t$e c$arge is serio%s an! t$e evi!ence o( g%ilt is strongA ;/< ,$en t$e res&on!ent is a reci!ivist an! ;1< ,$en t$e res&on!ent is notorio%sl' %n!esirable. 2$e &o,er to !isci&line is s&eci(icall' grante! b' )ection 07 o( t$e #!ministrative Co!e o( 1887 to $ea!s o( !e&artments agencies an! instr%mentalities &rovinces an! cities. On t$e ot$er $an! t$e &o,er to commence a!ministrative &rocee!ings against a s%bor!inate o((icer or em&lo'ee is grante! b' )ection 10 o( t$e Omnib%s -%les *m&lementing Boo+ K o( t$e sai! #!ministrative Co!e to t$e secretar' o( a !e&artment t$e $ea! o( o((ice o( e.%ivalent ran+ t$e $ea! o( a local government %nit t$e c$ie( o( an agenc' t$e regional !irector or a &erson ,it$ a s,orn ,ritten com&laint. 2$e cit' treas%rer ma' instit%te mot% &ro&io !isci&linar' &rocee!ings against a s%bor!inate o((icer or em&lo'ee. Local #!ministrative -eg%lations ;L#-< No. /D8C U//V ,$ic$ ,as iss%e! b' t$e Ministr' o( Finance on Marc$ /7 188C a%t$oriBe! t$e minister ;no, secretar'< o( (inance t$e regional !irector an! $ea! o( a local treas%r' or an assessment o((ice to start a!ministrative !isci&linar' action against o((icers or em&lo'ees s%bor!inate to t$em. *n t$e case at bar t$e cit' treas%rer is t$e &ro&er !isci&lining a%t$orit' re(erre! to in )ection 07 o( t$e #!ministrative Co!e o( 1887. 2$e term Eagenc'F re(ers to an' o( t$e vario%s %nits o( t$e government incl%!ing a !e&artment a b%rea% an o((ice an instr%mentalit' a governmentDo,ne! or controlle! cor&oration or a local government or a !istinct %nit t$erein. -es&on!ent =a9aro as t$e cit' treas%rer ,as t$e $ea! o( t$e O((ice o( t$e 2reas%rerA ,$ile &etitioner a senior reven%e collector ,as an o((icer %n!er $im. 2$%s t$e cit' treas%rer is t$e &ro&er !isci&lining a%t$orit' ,$o co%l! investigate &etitioner an! iss%e a &reventive s%s&ension or!er against $im. =etitioner>s contention t$at it is onl' t$e cit' ma'or ,$o ma' !isci&line $im is not &ers%asive. )ection 0CC o( t$e 1881 LGC states t$at t$e cit' ma'or Ema' ca%se to be instit%te! a!ministrative or 9%!icial &rocee!ings against an' o((icial or em&lo'ee o( t$e cit'.F 2$is r%le is not incongr%ent ,it$ t$e &rovisions o( t$e 1887 #!ministrative Co!e ,$ic$ a%t$oriBes t$e $ea!s o( agencies to !isci&line s%bor!inate em&lo'ees. Li+e,ise t$e ol! LGC !oes not vest in cit' ma'ors t$e sole &o,er to !isci&line an! to instit%te criminal or a!ministrative actions against an' o((icers or em&lo'ees %n!er t$eir 9%ris!iction. *n (act t$ere is no &rovision %n!er t$e &resent LGC e4&ressl' rescin!ing t$e a%t$orit' o( t$e De&artment o( Finance to e4ercise !isci&linar' a%t$orit' over its em&lo'ees. B' t$e same to+en t$ere is not$ing t$at &ro$ibits t$e cit' treas%rer (rom (iling a com&laint against &etitioner. #s a corollar' t$e &o,er to !isci&line evi!entl' incl%!es t$e &o,er to investigate. Haga! v. GoBoDDa!ole ,e e4&laine! t$e rationale (or &reventive s%s&ension as (ollo,s: not being in t$e nat%re o( a &enalt' a &reventive s%s&ension can be !ecree! on an o((icial %n!er investigation a(ter c$arges are bro%g$t an! even be(ore t$e c$arges are $ear!. Nat%rall' s%c$ a &reventive s%s&ension ,o%l! occ%r &rior to an' (in!ing o( g%ilt or innocence.F )%s&ension is a &reliminar' ste& in an a!ministrative investigation. *( a(ter s%c$ investigation t$e c$arges are establis$e! an! t$e &erson investigate! is (o%n! g%ilt' o( acts ,arranting $is removal
/GG

t$en $e is remove! or !ismisse!. 2$is is t$e &enalt'. 2$ere is t$ere(ore not$ing im&ro&er in s%s&en!ing an o((icer &en!ing $is investigation an! be(ore t$e c$arges against $im are $ear! an! be given o&&ort%nit' to &rove $is innocence.F *n t$e &resent case -es&on!ent =a9aro ,as a%t$oriBe! to iss%e t$e assaile! =reventive )%s&ension Or!er against &etitioner beca%se t$e latter ,as c$arge! ,it$ gross neglect o( !%t' re(%sal to &er(orm o((icial !%ties an! (%nctions an! ins%bor!ination DD gro%n!s t$at allo,e! t$e iss%ance o( s%c$ Or!er as &rovi!e! b' )ection C1 o( t$e 1887 #!ministrative Co!e. Clearl' t$e cit' treas%rer acte! ,it$in t$e sco&e o( $is &o,er ,$en $e commence! t$e investigation an! iss%e! t$e assaile! Or!er. 6ON Garcia>s rig$t to !%e &rocess ,as violate! beca%se $e ,as not $ear! !%ring t$e a!ministrative &rocee!ings. NO. *n an a!ministrative &rocee!ing t$e essence o( !%e &rocess is sim&l' t$e o&&ort%nit' to e4&lain one>s si!e. )%c$ &rocess re.%ires notice an! an o&&ort%nit' to be $ear! be(ore 9%!gment is ren!ere!. One ma' be $ear! not solel' b' verbal &resentation in an oral arg%ment b%t also DD an! &er$a&s even man' times more cre!itabl' an! &racticabl' DD t$ro%g$ &lea!ings. )o long as t$e &arties are given t$e o&&ort%nit' to e4&lain t$eir si!e t$e re.%irements o( !%e &rocess are satis(actoril' com&lie! ,it$. Moreover t$is constit%tional man!ate is !eeme! satis(ie! i( a &erson is grante! an o&&ort%nit' to see+ reconsi!eration o( an action or a r%ling. *n t$e case at bar t$e a!ministrative &rocee!ings ,ere con!%cte! in accor!ance ,it$ t$e &roce!%re set o%t in t$e 1887 #!ministrative Co!e an! ot$er &ertinent la,s. First &etitioner ,as (%rnis$e! a co&' o( t$e Ma' 15 1885 (ormal c$arge against $im. )econ! -es&on!ent =a9aro re.%este! t$e a&&roval o( t$e Or!er o( =reventive )%s&ension in $is 7%ne 1 1885 letter a!!resse! to t$e B%rea% o( Local Government Finance regional !irector ,$o a&&rove! t$e Or!er in t$e First *n!orsement !ate! 7%ne 0 1885. 2$ir! a s%b&oena !ate! 7%l' 11 1885 ,as iss%e! to &etitioner or!ering $im to testi(' !%ring an investigation on #%g%st 1C 1885. Ho,ever $e a!mitte!l' re(%se! to atten! t$e investigationA t$%s it ,as con!%cte! e4 &arte. Fo%rt$ t$e De&artment o( Finance a((irme! -es&on!ent =a9aro>s (in!ings in its #%g%st 1 1881 Decision. =arties ,$o c$oose not to avail t$emselves o( t$e o&&ort%nit' to ans,er c$arges against t$em cannot com&lain o( a !enial o( !%e &rocess.UCCV =etitioner>s re(%sal to atten! t$e sc$e!%le! $earings !es&ite !%e notice ,as at $is o,n &eril. +avellana v. *)LG an (antos
/.
Facts: Cit' 3ngineer Divinagracia (ile! an a!ministrative case against #tt'. 7avellana an electe! Cit' Co%ncilor o( Bago Cit' Negros Occi!ental (or contin%o%sl' engaging in t$e &ractice o( la, ,it$o%t sec%ring a%t$orit' (or t$at &%r&ose (rom t$e -egional Director De&artment o( Local Government as re.%ire! b' DLG Memoran!%m Circ%lar No. 85D18 in relation to DLG Memoran!%m Circ%lar No. 70DC8 o( t$e same !e&artment. 7avellana also assails t$e constit%tionalit' o( Memoran!%m Circ%lars Nos. 85D18 an! 85D on t$e gro%n! t$at t$e )%&reme Co%rt $as t$e sole an! e4cl%sive a%t$orit' to reg%late t$e &ractice o( la,. *ss%e: 6ON t$e D*LG committe! a grave ab%se o( !iscretion in iss%ing t$e .%estione! DLG Circ%lars Nos. 85D15 an! 85D81 an! in !en'ing &etitionerHs motion to !ismiss t$e a!ministrative c$arge against $im. Com&laints against &%blic o((icers an! em&lo'ees relating or inci!ental to t$e &er(ormance o( t$eir !%ties are necessaril' im&resse! ,it$ &%blic interest (or b' e4&ress constit%tional man!ate a &%blic o((ice is a &%blic tr%st. 2$e com&laint (or illegal !ismissal (ile! b' 7aviero an! Cata&ang against Cit' 3ngineer Divinagracia is in e((ect a com&laint against t$e Cit' Government o( Bago Cit' t$eir real em&lo'er o( ,$ic$ &etitioner 7avellana is a co%ncilman. Hence 9%!gment against Cit' 3ngineer Divinagracia ,o%l! act%all' be a 9%!gment against t$e Cit' Government. B' serving as co%nsel (or t$e com&laining em&lo'ees an! assisting t$em to &rosec%te t$eir claims against Cit' 3ngineer Divinagracia t$e &etitioner violate! Memoran!%m Circ%lar No. 70DC8 ;in relation to )ection 7UbD/V o( -# G711< &ro$ibiting a government o((icial (rom engaging in t$e &rivate &ractice o( $is &ro(ession i( s%c$ &ractice ,o%l! re&resent interests a!verse to t$e government.
/G7
Mabelle O. Nebres | Local Governments Case Digests =etitionerHs contention t$at )ection 85 o( t$e LGC o( 1881
an! DLG Memoran!%m Circ%lar No. 85D81 violate #rticle K*** )ection C o( t$e Constit%tion is com&letel' o(( tangent. Neit$er t$e stat%te nor t$e circ%lar trenc$es %&on t$e )%&reme Co%rtHs &o,er an! a%t$orit' to &rescribe r%les on t$e &ractice o( la,. 2$e LGC an! DLG Memoran!%m Circ%lar No. 85D81 sim&l' &rescribe r%les o( con!%ct (or &%blic o((icials to avoi! con(licts o( interest bet,een t$e !isc$arge o( t$eir &%blic !%ties an! t$e &rivate &ractice o( t$eir &ro(ession in t$ose instances ,$ere t$e la, allo,s it. )ection 85 o( t$e LGC !oes not !iscriminate against la,'ers an! !octors. *t a&&lies to all &rovincial an! m%nici&al o((icials in t$e &ro(essions or engage! in an' occ%&ation. )ection 85 e4&licitl' &rovi!es t$at sangg%nian members "ma' &ractice t$eir &ro(essions engage in an' occ%&ation or teac$ in sc$ools e4&ect !%ring session $o%rs." *( t$ere are some &ro$ibitions t$at a&&l' &artic%larl' to la,'ers it is beca%se o( all t$e &ro(essions t$e &ractice o( la, is more li+el' t$an ot$ers to relate to or a((ect t$e area o( &%blic service. )%&erinten!ent o( *riga Cit' as )c$ools Division )%&erinten!ent ,it$o%t an' s&eci(ic !ivision. 2$%s res&on!ent &er(orme! t$e (%nctions o( )c$ools Division )%&erinten!ent in *riga Cit'. )%bse.%entl' on November 1 1887 )ecretar' Gloria !esignate! res&on!ent as )c$ools Division )%&erinten!ent o( Camarines )%r an! &etitioner as )c$ools Division )%&erinten!ent o( *riga Cit'. *n !ismissing &etitionerHs &rotest t$e Civil )ervice Commission $el! t$at )ection 88 o( t$e LGC o( 1881 contem&lates a sit%ation ,$ere t$e De&artment o( 3!%cation C%lt%re an! )&orts iss%es t$e a&&ointments ,$ereas res&on!entHs a&&ointment ,as ma!e b' no less t$an t$e =resi!ent in t$e e4ercise o( $is a&&ointing &o,er. Moreover t$e !esignation o( res&on!ent as )c$ools Division )%&erinten!ent o( Camarines )%r an! o( &etitioner as )c$ools Division )%&erinten!ent o( *riga Cit' ,ere in t$e nat%re o( reassignments in ,$ic$ case cons%ltation ,it$ t$e local sc$ool boar! ,as %nnecessar'. M-: !enie!. C#: !ismisse!. *ss%es: 1. 6ON )ec 88 o( t$e LGC is a&&licable. Clearl' t$e a(oreD.%ote! &ortion o( )ection 88 o( t$e LGCo( 1881 a&&lies to a&&ointments ma!e b' t$e D3C). 2$is is beca%se at t$e time o( t$e enactment o( t$e LGC sc$ools !ivision s%&erinten!ents ,ere a&&ointe! b' t$e D3C) to s&eci(ic !ivision or location. *n 1880 t$e Career 34ec%tive )ervice Boar! iss%e! Memoran!%m Circ%lar No. /1 )eries o( 1880 &lacing t$e &ositions o( sc$ools !ivision s%&erinten!ent an! assistant sc$ools !ivision s%&erinten!ent ,it$in t$e career e4ec%tive service. Conse.%entl' t$e &o,er to a&&oint &ersons to career e4ec%tive service &ositions ,as trans(erre! (rom t$e D3C) to t$e =resi!ent. 2$e a&&ointment ma' not be s&eci(ic as to location. 2$e &rerogative to !esignate t$e a&&ointees to t$eir &artic%lar stations ,as veste! in t$e D3C) )ecretar' &%rs%ant to t$e e4igencies o( t$e service as &rovi!e! in D3C) Or!er No. 7C )eries o( 188G. *n t$e case at bar t$e a&&ointment iss%e! b' =resi!ent -amos in (avor o( res&on!ent to t$e )c$ools Division )%&erinten!ent &osition on )e&tember 1 188G !i! not s&eci(' $er station. *t ,as )ecretar' Gloria ,$o in a Memoran!%m !ate! November 1 1887 assigne! an! !esignate! res&on!ent to t$e Division o( Camarines )%r an! &etitioner to t$e Division o( *riga Cit'.
Osea v. Mala#a Facts: On November /5 1887 &etitioner (ile! a =rotest Case ,it$ t$e Civil )ervice Commission. )$e averre! t$at s$e ,as a&&ointe! as O((icerDinDC$arge #ssistant )c$ools Division )%&erinten!ent o( Camarines )%r b' t$en )ecretar' -icar!o 2. Gloria o( t$e De&artment o( 3!%cation C%lt%re an! )&orts %&on t$e en!orsement o( t$e =rovincial )c$ool Boar! o( Camarines )%rA t$at !es&ite t$e recommen!ation o( )ecretar' Gloria =resi!ent Fi!el K. -amos a&&ointe! res&on!ent to t$e &osition o( )c$ools Division )%&erinten!ent o( Camarines )%rA t$at res&on!entHs a&&ointment ,as ma!e ,it$o%t &rior cons%ltation ,it$ t$e =rovincial )c$ool Boar! in violation o( )ection 88 o( t$e LGC o( 1881. Hence &etitioner &ra'e! t$at res&on!entHs a&&ointment be recalle! an! set asi!e (or being n%ll an! voi!. On Marc$ 11 1888 t$e Civil )ervice Commission iss%e! -esol%tion No. 885G88 !ismissing &etitionerHs &rotestDcom&laint. 2$e Civil )ervice Commission (o%n! t$at on )e&tember 11 188G =resi!ent -amos a&&ointe! res&on!ent ,$o ,as t$en O((icerDinDC$arge )c$ools Division
/G8
Mabelle O. Nebres | Local Governments Case Digests @n!er t$e circ%mstances t$e !esignation o( res&on!ent as
)c$ools Division )%&erinten!ent o( Camarines )%r ,as not a case o( a&&ointment. Her !esignation &artoo+ o( t$e nat%re o( a reassignment (rom *riga Cit' ,$ere s$e &revio%sl' e4ercise! $er (%nctions as O((icerDinDC$argeD)c$ools Division )%&erinten!ent to Camarines )%r. Clearl' t$ere(ore t$e re.%irement in )ection 88 o( t$e LGC o( 1881 o( &rior cons%ltation ,it$ t$e local sc$ool boar! !oes not a&&l'. *t onl' re(ers to a&&ointments ma!e b' t$e De&artment o( 3!%cation C%lt%re an! )&orts. )%c$ is t$e &lain meaning o( t$e sai! la,. 2$e "&lain meaning r%le" or verba legis in stat%tor' constr%ction is t$%s a&&licable in t$is case. 6$ere t$e ,or!s o( a stat%te are clear &lain an! (ree (rom ambig%it' it m%st be given its literal meaning an! a&&lie! ,it$o%t attem&te! inter&retation. #&&ointment s$o%l! be !isting%is$e! (rom reassignment. #n a&&ointment ma' be !e(ine! as t$e selection b' t$e a%t$orit' veste! ,it$ t$e &o,er o( an in!ivi!%al ,$o is to e4ercise t$e (%nctions o( a given o((ice. 6$en com&lete! %s%all' ,it$ its con(irmation t$e a&&ointment res%lts in sec%rit' o( ten%re (or t$e &erson c$osen %nless $e is re&laceable at &leas%re beca%se o( t$e nat%re o( $is o((ice. On t$e ot$er $an! a reassignment is merel' a movement o( an em&lo'ee (rom one organiBational %nit to anot$er in t$e same !e&artment or agenc' ,$ic$ !oes not involve a re!%ction in ran+ stat%s or salar' an! !oes not re.%ire t$e iss%ance o( an a&&ointment. *n t$e same vein a !esignation connotes merel' t$e im&osition o( a!!itional !%ties on an inc%mbent o((icial. 6ON =etitioner $as a veste! rig$t to t$e &osition o( )c$ools Division )%&erinten!ent o( Camarines )%r in vie, o( $er en!orsement b' t$e =rovincial )c$ool Boar!. Her .%ali(ication to t$e o((ice $o,ever lac+s one essential ingre!ient i.e. $er a&&ointment t$ereto. 6$ile s$e ,as recommen!e! b' )ecretar' Gloria to =resi!ent -amos (or a&&ointment to t$e &osition o( )c$ools Division )%&erinten!ent o( Camarines )%r t$e recommen!ation ,as not acte! %&on b' t$e =resi!ent. =etitionerHs !esignation as O((icerDinDC$arge #ssistant )c$ools Division )%&erinten!ent ,as e4&ressl' ma!e s%b9ect to (%rt$er a!vice (rom t$e De&artment o( 3!%cation C%lt%re an! )&orts.1G 2$%s $er !esignation ,as tem&orar'. *n (act t$ere ,as a nee! to recommen! $er to t$e =resi!ent (or a&&ointment in a &ermanent ca&acit'. *nasm%c$ as s$e occ%&ie! $er &osition onl' tem&oraril' &etitioner can be trans(erre! or reassigne! to ot$er &ositions ,it$o%t violating $er rig$t to sec%rit' o( ten%re. *n!ee! &etitioner $as no veste! rig$t to t$e &osition o( )c$ools Division )%&erinten!ent o( Camarines )%r.
/.
Basco v. PAGCOR /supra- see p. 61
/G8

Ganzon v. CA /supra- see p. D1 Cit# o! Cebu v. ,ational 7ater"or:s an Authorit# (e"erage De(en!ant ,as also given t$e &o,er "to ac.%ire &%rc$ase $ol! trans(er sell lease rent mortgage enc%mber an! ot$er,ise !is&ose o( real an! &ersonal &ro&ert' incl%!ing rig$ts an! (ranc$ises ,it$in t$e =$ili&&ines as a%t$oriBe! b' t$e &%r&oses (or ,$ic$ t$e #%t$orit' ,as create! an! reasonabl' an! necessaril' re.%ire! (or t$e transaction o( t$e la,(%l b%siness o( t$e same %nless ot$er,ise &rovi!e! in t$is #ct" an! to e4ercise t$e rig$t o( eminent !omain (or t$e &%r&ose (or ,$ic$ t$e #%t$orit' ,as create! in t$e manner &rovi!e! (or b' la, (or con!emnation &rocee!ings b' t$e national &rovincial an! m%nici&al governmentsA ;)ec. / &aragra&$s U$V an! UiV<. Lastl' t$e #ct &rovi!es t$at "all e4isting governmentDo,ne! ,ater,or+s an! se,erage s'stems in cities m%nici&alities an! m%nici&al !istricts incl%!ing s&rings an! ot$er ,ater so%rces as ,ell as t$e ,aterD,or+s an! se,erage bon!s sin+ing (%n!s an! all in!ebte!ness in general o( t$e sai! Metro&olitan 6ater District an! governmentDo,ne! ,ater,or+s an! se,erage s'stems are trans(erre! to t$e National 6ater,or+s an! )e,erage #%t$orit' an! t$e Boar! is $ereb' a%t$oriBe! an! !irecte! to receive an! ass%me all s%c$ assets an! liabilities or on be$al( o( t$e sai! #%t$orit' an! in t%rn to &le!ge s%c$ assets as sec%rit' (or t$e &a'ment o( ,ater,or+s an! se,erage bon!e! !ebt" an! t$at t$e net boo+ val%e o( t$e &ro&erties an! assets o( t$e Metro&olitan 6ater District an! o( government o,ne! ,ater,or+s an! se,erage s'stems in cities m%nici&alities or m%nici&al !istricts an! ot$er governmentDo,ne! ,ater,or+s an! se,erage s'stems s$all be receive! b' t$e #%t$orit' in &a'ment (or an e.%al val%e o( t$e assets o( t$e National 6ater,or+s an! )e,erage #%t$orit'. ;)ec. 8<. *ss%e: 6ON -# 1181 constit%tional. Cit' o( Bag%io vs. 2$e National 6ater,or+s an! )e,erage #%t$orit': *t is clear t$at t$e )tate ma' in t$e interest o( national ,el(are trans(er to &%blic o,ners$i& an' &rivate enter&rise %&on &a'ment o( 9%st com&ensation. #t t$e same time one $as to bear in min! t$at no &erson can be !e&rive! o( $is &ro&ert' e4ce&t (or &%blic %se an! %&on &a'ment o( 9%st com&ensation. 2$ere is an attem&t to observe t$is re.%irement in -e&%blic #ct No. 1181 ,$en in &rovi!ing (or t$e trans(er o( a&&elleeHs ,ater,or+s s'stem to a national agenc' it ,as !irecte! t$at t$e trans(er be ma!e %&on &a'ment o( an e.%ivalent val%e o( t$e &ro&ert'.
Facts: 2$e OsmeRa 6ater,or+s )'stem ,as constr%cte! t$ro%g$ a sale o( bon!s as a%t$oriBe! b' t$e =$ili&&ine Legislat%re t$ro%g$ #ct /558. B' stat%te t$e Cit' o( Ceb% came into e4istence as a &olitical bo!' cor&orate on /5 October 181G. 2$e ne,l' create! cit' absorbe! t$e (ormer m%nici&alit' o( Ceb%. #mong t$e general &o,ers grante! to an! !%ties im&ose! %&on t$e legislative bo!' o( t$e Cit' +no,n as t$e M%nici&al Boar! is t$at o( &rovi!ing (or t$e maintenance o( ,ater,or+s (or t$e &%r&ose o( s%&&l'ing ,ater to t$e in$abitants o( t$e cit' an! t$e &%ri(ication o( t$e so%rce o( s%&&l' an! t$e &laces t$ro%g$ ,$ic$ t$e same &asses an! to reg%late t$e cons%m&tion an! %se o( t$e ,aterA to (i4 an! &rovi!e (or t$e collection o( rents t$ere(orA an! to reg%late t$e constr%ction re&air an! %se o( $'!rants &%m&s cisterns an! reservoirs. )ec. 17D4. Common,ealt$ #ct C8<.=%rs%ant to t$e a(oresai! c$arter &rovision t$e M%nici&al Boar! t$e Cit' o( Ceb% $as been r%nning an! o&erating t$e OsmeRa 6ater,or+s )'stem. *ts m%nici&al Boar! &rovi!es (or t$e b%!getar' e4&enses o( t$e )'stem an! governs t$e !is&osition o( t$e )'stemHs reven%e.On 1G November 1808 t$e =%blic )ervice Commission grante! &lainti(( Cit' a certi(icate o( &%blic convenience to o&erate an! maintain t$e OsmeRa 6ater,or+s )'stem s%b9ect to t$e terms an! con!itions im&ose! t$erein. For t$e &%r&ose o( e4&an!ing t$e service to meet t$e ,ater nee!s o( its increase! &o&%lation t$e Cit' o( Ceb% on 11 December 18C5 (ile! ,it$ t$e De&artment o( #gric%lt%re an! Nat%ral -eso%rces an a&&lication (or t$e %se o( ,ater emanating (rom a nat%ral s&ring in a &rivate lan! belonging to t$e late Dr. =io Kalencia sit%ate! in Hag%biao Consolacion Ceb%. 2$e sai! a&&lication ,as in !%e time a&&rove! b' t$e !e&artment $ea!. On 17 7%ne 18CC !e(en!ant #%t$orit' ,as create! as a &%blic cor&oration. ;)ec. 1 -e&%blic #ct No. 1181<. =%rs%ant to its c$arter !e(en!ant s$all o,n an!?or $ave 9%ris!iction s%&ervision an! control over all territor' no, embrace! b' t$e Metro&olitan 6ater District as ,ell as all areas no, serve! b' e4isting governmentD o,ne! ,ater,or+s an! se,erage an! !rainage s'stems ,it$in t$e bo%n!aries o( cities m%nici&alities an! m%nici&al !istricts in t$e =$ili&&ines incl%!ing t$ose serve! b' t$e 6ater,or+s an! 6ells an! Drills )ections o( t$e B%rea% o( =%blic 6or+sH ;)ec. 1<.
/75

Has t$is been im&lemente!T Has a&&ellant act%all' trans(erre! a&&ellee an' asset o( t$e N#6#)# t$at ma' be consi!ere! 9%st com&ensation (or t$e &ro&ert' e4&ro&riate!T 2$ere is not$ing in t$e recor! to s$o, t$at s%c$ ,as !one. Neit$er is t$ere an't$ing to t$is e((ect in O((ice Memoran!%m No. 7 iss%e! b' t$e N#6#)# in im&lementation o( t$e &rovision o( -e&%blic #ct No. 1181. 2$e la, s&ea+s o( assets o( t$e N#6#)# b%t t$e' are not s&eci(ie!. 6$ile t$e #ct em&o,ers t$e N#6#)# to contract in!ebte!ness an! iss%e bon!s s%b9ect to t$e a&&roval o( t$e )ecretar' o( Finance ,$en necessar' (or t$e transaction o( its b%siness ;sec. / &a ;1< sec. C #ct No. 1181< no s%c$ action $as been ta+en to com&l' ,it$ a&&ellantHs commitment in so (ar as &a'ment o( com&ensation o( a&&ellee is concerne!. #s to ,$en s%c$ action s$o%l! be ta+en no one +no,s. #n! %nless t$is as&ect o( t$e la, is clari(ie! an! a&&ellee is given its !%e com&ensation a&&ellee cannot be !e&rive! o( its &ro&ert' even i( a&&ellant !esires to ta+e over its a!ministration in line ,it$ t$e s&irit o( t$e la,. 6e are t$ere(ore &ers%a!e! to concl%!e t$at t$e la, inso(ar as it e4&ro&riates t$e ,ater,or+s in .%estion ,it$o%t &rovi!ing (or an e((ective &a'ment o( 9%st com&ensation violates o%r Constit%tion. 34actl' t$e same sit%ation obtains in t$e &resent case. )ection 8 o( -e&%blic #ct No. 1181 ;s%&ra.< &rovi!es t$at "t$e net boo+ val%e o( t$e &ro&erties an! assets o( t$e Metro&olitan 6ater District an! o( governmentDo,ne! ,ater,or+s an! se,erage s'stems in cities m%nici&alities o( m%nici&al !istricts an! ot$er governmentDo,ne! ,ater,or+s an! se,erage s'stems s$all be receive! b' t$e #%t$orit' in &a'ment (or an e.%al val%e o( t$e assets o( t$e National 6ater,or+s an! )e,erage #%t$orit'". *n ot$er ,or!s all t$e &ro&erties an! assets o( t$e OsmeRa 6ater,or+s )'stem are trans(erre! to t$e !e(en!ant N#6#)# in e4c$ange (or an e.%al val%e o( t$e latterHs assets. B%t ,$at t$ese assets consist o( not$ing concrete &resentl' a&&ears. #ll t$at is &rovi!e! in )ection 8 is t$at N#6#)# ac.%ires all t$e assets an! liabilities o( all governmentDo,ne! ,ater,or+s an! se,erage s'stems in t$e co%ntr'. *t is an e.%al val%e o( t$ese %nli.%i!ate! assets an! liabilities t$at is s%&&ose! to be given to &lainti((D a&&ellee as &a'ment o( its )'stem. )%c$ certainl' is not a com&ensation t$at satis(ies t$e Constit%tional &rovisions. Ceb%: ,ater,or+s involve! $erein is not a &atrimonial &ro&ert' o( t$e Cit' o( Ceb% b%t one (or &%blic %se an! t$ere(ore (alls ,it$in t$e control o( t$e legislat%re. 6e (in! no merit in $is contention. *t m%st be remembere! t$at t$e OsmeRa 6ater,or+s )'stem ,as establis$e! o%t o( t$e d1/C 555.55 loan e4ten!e! to t$e m%nici&alit' o( Ceb% b' t$e @.). Government &a'able ,it$in 15 'ears (rom t$e release t$ereo( ;)ec. 1 #ct /558< an! ,$ic$ a&&arentl' ,as (%ll' &ai! (or b' sai! m%nici&alit' as certi(ie! to b' t$e *ns%lar 2reas%rer ;34$. D<. For its o&eration an! maintenance t$e Cit' o( Ceb% ;OsmeRa 6ater,or+s )'stem< a&&lie! (or an! obtaine! a certi(icate o( &%blic convenience (rom t$e =%blic )ervice Commission ;34$. 3< an! ,as ma!e s%b9ect to t$e rates (i4e! an! reg%lations im&ose! b' sai! bo!'. 2$e )'stem o,ne! &ro&erties ,$ic$ a&&ellee estimate! at =15 555 555.55 alt$o%g$ a&&ellant claims it to be ,ort$ onl' =1 555 555.55 an! o&erates on a b%!get a&&rove! b' its Boar! o( Directors ;not b' Congress< t$e !isb%rsement o( ,$ic$ ,as &lace! %n!er t$e s%&ervision an! c%sto!' o( t$e Cit' 2reas%rer ;t.s.n. &&. /8D /8<. 2$e mere (act t$at t$e B%$isan basin ,$ere t$e ,ater is collecte! stan!s on a government reservation an! t$at t$e )'stem ,as create! to serve t$e nee!s o( t$e resi!ents o( sai! Cit' ;%&on &a'ment o( certain rates (rom ,$ic$ t$e )'stem !erives material gain< to o%r min! !o not trans(orm t$e &ro&rietar' nat%re o( a&&elleeHs o,ners$i& over t$e same to governmental or &%blic. 2$e (la, in a&&ellantHs contention t$at t$e )'stem is a &%blic ,or+s (or &%blic service is !%e to an a&&arent misa&&re$ension t$at beca%se t$e )'stem serves t$e &%blic in a manner o( s&ea+ing it is b%t t$at to+en alone necessaril' (or &%blic service. 2$e contention overloo+s t$e (act t$at onl' t$ose o( t$e general &%blic ,$o &a' t$e re.%ire! rental or c$arge a%t$oriBe! an! collecte! b' t$e )'stem !o ma+e %se o( ,ater. *n ot$er ,or!s t$e )'stem serves all ,$o &a' t$e c$arges. *t is o&en to t$e &%blic ;in t$e sense it is &%blic service< b%t %&on t$e &a'ment onl' o( a certain rental ;,$ic$ ma+es it &ro&rietar'.< #rticle 0/0 o( Ne, Civil Co!e cite! b' a&&ellant ma+es clear !istinction. *t rea!s: #-2. 0/0. =ro&ert' (or &%blic %se in t$e &rovince cities m%nici&alities consist o(
/71

t$e &rovincial roa!s cit' streets m%nici&al streets t$e s.%ares (o%ntains &%blic ,aters &romena!es &%blic ,or+s (or &%blic service &ai! (or b' sai! &rovinces cities m%nici&alities. #ll ot$er &ro&ert' &ossesse! b' an' o( t$em is &atrimonial an! s$all be governe! b' t$is Co!e ,it$o%t &re9%!ice to t$e &rovisions o( s&ecial la,s. 2$%s t$e term "&%blic ,or+s (or &%blic service" m%st be inter&rete! (ollo,ing t$e &rinci&le o( e9%s!em generis in t$e conce&t o( t$e &rece!ing ,or!s "&rovincial roa!s cit' streets m%nici&al streets t$e s.%ares (o%ntains &%blic ,aters an! &romena!es" ,$ic$ are %se! (reel' b' all ,it$o%t !istinction. Hence i( t$e &%blic ,or+s is not s%c$ (ree &%blic service it is not ,it$in t$e &%rvie, t$e (irst &aragra&$ b%t o( t$e secon! &aragra&$ o( #rticle 0/0 an! conse.%entl' &atrimonial in c$aracter. #n! as alrea!' $el! b' t$is Co%rt a m%nici&al ,ater s'stem !esigne! to s%&&l' ,ater to t$e in$abitants (or &ro(it is a cor&orate (%nction o( t$e m%nici&alit' Cases !i((er as to t$e &%blic an! &rivate c$aracter o( ,ater ,or+s in some res&ects b%t t$e ,eig$t o( a%t$orit' in so (ar as legislative control is concerne! classes t$em as &rivate a((airs 2$e conse.%ential e((ect o( s%c$ !eclaration is (oreseeable t$%s: #lt$o%g$ t$e state ma' reg%late t$e service an! rates o( ,ater &lants o,ne! an! o&erate! b' m%nici&alities s%c$ &ro&ert' is not em&lo'e! (or governmental &%r&oses an! in t$e o,ners$i& o&eration t$ereo( t$e m%nici&alit' acts in its &ro&rietar' ca&acit' (ree (rom legislative inter(erence 2$e ,ater s'stem o( a cit' not being a &ro&ert' $el! (or governmental &%r&oses is not s%b9ect to legislative control *n t$e o,ners$i& an! control o( a ,ater s'stem &%rc$ase! b' t$e cit' o%t o( t$e &rocee!s o( t$e loan contracte! (or t$at &%r&ose t$e cit' acts in its &ro&rietar' c$aracter as !isting%is$e! (rom its government ca&acit'. )imilarl' ,e cannot %&$ol! a&&ellantHs t$eor' t$at t$e trans(er o( o,ners$i& o( t$e OsmeRa 6ater,or+s )'stem to anot$er government agenc' is a vali! e4ercise o( t$e &olice &o,er o( t$e )tate beca%se ,$ile t$e &o,er to enact la,s inten!e! to &romote &%blic or!er sa(et' $ealt$ morals an! general ,el(are o( societ' is in$erent in ever' sovereign state s%c$ &o,er is not ,it$o%t limitations notable among ,$ic$ is t$e constit%tional &ro$ibition against t$e ta+ing o( &rivate &ro&ert' (or &%blic %se ,it$o%t 9%st com&ensation. ;#rt. *** )ec. 1 =$ili&&ine Constit%tion.<. No e4ercise o( t$e &olice &o,er can !isregar! t$e constit%tional g%arantees in res&ect to t$e ta+ing o( &rivate &ro&ert' !%e &rocess an! e.%al &rotection o( t$e la,s an! it s$o%l! not overri!e t$e !eman!s o( nat%ral 9%stice *( a stat%te &%r&orting to $ave been enacte! to &rotect t$e &%blic $ealt$ morals or sa(et' $as no real or s%bstantial reason to t$ese ob9ects or is a &al&able invasion o( rig$ts sec%re! b' (%n!amental la, it is t$e !%t' o( co%rts to so a!9%!ge an! t$ereb' give e((ect to t$e Constit%tion. #ction in t$e nat%re o( &olice reg%lation is voi! i( against t$e e4&ress &rovisions o( t$e Constit%tion alt$o%g$ ot$er,ise ,it$in its general &o,er to ma+e &olice reg%lations. #&&ellant also %rges recognition o( t$e rig$t o( t$e National Government ;t$ro%g$ t$e National 6ater,or+s P )e,erage #%t$orit'< to ac.%ire t$e OsmeRa 6ater,or+s )'stem b' eminent !omain. 2$is ,e (in! to be e.%all' %ntenable (or one o( t$e essential re.%isites to t$e la,(%l e4ercise o( t$is rig$t is t$e &a'ment to t$e o,ner o( con!emne! &ro&ert' o( 9%st com&ensation to be ascertaine! accor!ing to la,. Nee!less to state in t$is res&ect t$at it is &recisel' (or t$is reason t$at is lac+ o( &rovision regar!ing e((ective &a'ment o( 9%st com&ensation t$at -e&%blic #ct No. 1181 ,as !eclare! violative o( t$e Constit%tion in t$e case o( Cit' o( Bag%io vs. National 6ater,or+s P )e,erage #%t$orit'. Province o! Famboanga el ,orte v. Cit# o! Famboanga
Facts: =rior to its incor&oration as a c$artere! cit' t$e M%nici&alit' o( Zamboanga %se! to be t$e &rovincial ca&ital o( t$e t$en Zamboanga =rovince. On October 1/ 181G Common,ealt$ #ct 18 ,as a&&rove! converting t$e M%nici&alit' o( Zamboanga into Zamboanga Cit'. )ec. C5 o( t$e #ct also &rovi!e! t$at b%il!ings an! &ro&erties ,$ic$ t$e &rovince s$all aban!on %&on t$e trans(er o( t$e ca&ital to anot$er &lace ,ill be ac.%ire! an! &ai! (or b' t$e Cit' o( Zamboanga at a &rice to be (i4e! b' t$e #%!itor General. 2$e &ro&erties an! b%il!ings re(erre! to consiste! o( C5 lots an! some b%il!ings constr%cte! t$ereon locate! in t$e Cit' o( Zamboanga an! covere! in!ivi!%all' b' 2orrens certi(icates o( title in t$e name o( Zamboanga =rovince. *n 180C t$e ca&ital o( Zamboanga =rovince ,as trans(erre! to Di&olog. )%bse.%entl' or
/7/

on 7%ne 1G 1808 -e&%blic #ct /8G ,as a&&rove! creating t$e m%nici&alit' o( Molave an! ma+ing it t$e ca&ital o( Zamboanga =rovince. On Ma' /G 1808 t$e #&&raisal Committee (orme! b' t$e #%!itor General &%rs%ant to Common,ealt$ #ct 18 (i4e! t$e val%e o( t$e &ro&erties an! b%il!ings in .%estion le(t b' Zamboanga =rovince in Zamboanga Cit' at =1 /80 /00.55. On 7%ne G 18C/ -e&%blic #ct 711 ,as a&&rove! !ivi!ing t$e &rovince o( Zamboanga into t,o: Zamboanga !el Norte an! Zamboanga !el )%r. #s to $o, t$e assets an! obligations o( t$e ol! &rovince ,ere to be !ivi!e! bet,een t$e t,o ne, ones )ec. G o( t$at la, &rovi!e! t$at t$e (%n!s assets an! ot$er &ro&erties an! t$e obligations o( t$e &rovince o( Zamboanga s$all be !ivi!e! e.%itabl' bet,een t$e =rovince o( Zamboanga !el Norte an! t$e =rovince o( Zamboanga !el )%r b' t$e =resi!ent o( t$e =$ili&&ines %&on t$e recommen!ation o( t$e #%!itor General. =%rs%ant t$ereto t$e #%!itor General on 7an%ar' 11 18CC a&&ortione! t$e assets an! obligations o( t$e !e(%nct =rovince o( Zamboanga as (ollo,s: C0.18Y (or Zamboanga !el Norte an! 0C.G1Y (or Zamboanga !el )%r. Zamboanga !el Norte t$ere(ore became entitle! to C0.18Y o( =1 /80 /00.55 t$e total val%e o( t$e lots an! b%il!ings in .%estion or =750 //5.5C &a'able b' Zamboanga Cit'. On Marc$ 17 18C8 t$e 34ec%tive )ecretar' b' or!er o( t$e =resi!ent iss%e! a r%ling $ol!ing t$at Zamboanga !el Norte $a! a veste! rig$t as o,ner ;s$o%l! be coDo,ner &roDin!iviso< o( t$e &ro&erties mentione! in )ec. C5 o( Common,ealt$ #ct 18 an! is entitle! to t$e &rice t$ereo( &a'able b' Zamboanga Cit'. 2$is r%ling revo+e! t$e &revio%s Cabinet -esol%tion o( 7%l' 11 18C1 conve'ing all t$e sai! C5 lots an! b%il!ings t$ereon to Zamboanga Cit' (or =1.55 e((ective as o( 180C ,$en t$e &rovincial ca&ital o( t$e t$en Zamboanga =rovince ,as trans(erre! to Di&olog. 2$e )ecretar' o( Finance t$en a%t$oriBe! t$e Commissioner o( *nternal -even%e to !e!%ct an amo%nt e.%al to /CY o( t$e reg%lar internal reven%e allotment (or t$e Cit' o( Zamboanga (or t$e .%arter en!ing Marc$ 11 18G5 t$en (or t$e .%arter en!ing 7%ne 15 18G5 an! again (or t$e (irst .%arter o( t$e (iscal 'ear 18G5D18G1. 2$e !e!%ctions all aggregating =C7 171.0G ,as cre!ite! to t$e &rovince o( Zamboanga !el Norte in &artial &a'ment o( t$e =7G0 //5.5C !%e it. Ho,ever on 7%ne 17 18G1 -e&%blic #ct 1518 ,as a&&rove! amen!ing )ec. C5 o( Common,ealt$ #ct 18 b' &rovi!ing t$at a#ll b%il!ings &ro&erties an! assets belonging to t$e (ormer &rovince o( Zamboanga an! locate! ,it$in t$e Cit' o( Zamboanga are $ereb' trans(erre! (ree o( c$arge in (avor o( t$e sai! Cit' o( Zamboanga. Conse.%entl' t$e )ecretar' o( Finance on 7%l' 1/ 18G1 or!ere! (%rt$er &a'ments to Zamboanga !el Norte an! to ret%rn to Zamboanga Cit' t$e s%m o( =C7 171.0G ta+en (rom it o%t o( t$e internal reven%e allotment o( Zamboanga !el Norte. Zamboanga Cit' a!mits t$at since t$e enactment o( -e&%blic #ct 1518 =01 515.11 o( t$e =C7 171.0G $as alrea!' been ret%rne! to it. 2$is constraine! &lainti((Da&&ellee Zamboanga !el Norte to (ile on Marc$ C 18G/ a com&laint entitle! "Declarator' -elie( ,it$ =reliminar' Man!ator' *n9%nction" in t$e Co%rt o( First *nstance o( Zamboanga !el Norte against !e(en!antsDa&&ellants Zamboanga Cit' t$e )ecretar' o( Finance an! t$e Commissioner o( *nternal -even%e. *t ,as &ra'e! t$at: ;a< -e&%blic #ct 1518 be !eclare! %nconstit%tional (or !e&riving &lainti(( &rovince o( &ro&ert' ,it$o%t !%e &rocess an! 9%st com&ensationA ;b< =lainti((Hs rig$ts an! obligations %n!er sai! la, be !eclare!A ;c< 2$e )ecretar' o( Finance an! t$e *nternal -even%e Commissioner be en9oine! (rom reimb%rsing t$e s%m o( =C7 171.0G to !e(en!ant Cit'A an! ;!< 2$e latter be or!ere! to contin%e &a'ing t$e balance o( =750 //5.5C in .%arterl' installments o( /CY o( its internal reven%e allotments. On 7%ne 0 18G/ t$e lo,er co%rt or!ere! t$e iss%ance o( &reliminar' in9%nction as &ra'e! (or. #(ter !e(en!ants (ile! t$eir res&ective ans,ers trial ,as $el!. On #%g%st 1/ 18G1 9%!gment ,as ren!ere! !eclaring -e&%blic #ct No. 1518 %nconstit%tional inso(ar as it !e&rives &lainti(( Zamboanga !el Norte o( its &rivate &ro&erties consisting o( C5 &arcels o( lan! an! t$e im&rovements t$ereon %n!er certi(icates o( title in t$e name o( t$e !e(%nct &rovince o( ZamboangaA or!ering !e(en!ant Cit' o( Zamboanga to &a' to t$e &lainti(( t$e s%m o( =750 //5.5C &a'ment t$ereo( to be !e!%cte! (rom its reg%lar .%arterl' internal reven%e allotment e.%ivalent to /CY t$ereo( ever' .%arter %ntil sai! amo%nt s$all $ave been (%ll' &ai!A or!ering !e(en!ant )ecretar' o( Finance to !irect !e(en!ant Commissioner o( *nternal -even%e to !e!%ct /CY (rom t$e reg%lar .%arterl' internal reven%e allotment (or !e(en!ant Cit' o( Zamboanga an! to remit t$e same to &lainti(( Zamboanga !el Norte %ntil sai! s%m o( =750 //5.5C s$all $ave been (%ll' &ai!A or!ering &lainti(( Zamboanga !el Norte to e4ec%te t$ro%g$ its &ro&er o((icials t$e corres&on!ing &%blic instr%ment !ee!ing to !e(en!ant Cit' o( Zamboanga t$e C5 &arcels o( lan! an! t$e im&rovements t$ereon %n!er t$e certi(icates o( title %&on &a'ment b' t$e latter o( t$e a(oresai! s%m o( =750 //5.5C in (%llA !ismissing t$e co%nterclaim o( !e(en!ant Cit' o( ZamboangaA an! !eclaring &ermanent t$e &reliminar' man!ator' in9%nction iss%e! on 7%ne 8 18G/ &%rs%ant to t$e or!er o( t$e Co%rt !ate! 7%ne 0 18G/. No
/71

costs are assesse! against t$e !e(en!ants. )%bse.%entl' b%t &rior to t$e &er(ection o( !e(en!antsH a&&eal &lainti(( &rovince (ile! a motion to reconsi!er &ra'ing t$at Zamboanga Cit' be or!ere! instea! to &a' t$e =750 //5.5C in l%m& s%m ,it$ GY interest &er ann%m. Over !e(en!antsH o&&osition t$e lo,er co%rt grante! &lainti(( &rovinceHs motion. *ss%e: 6ON -# 1518 is %nconstit%tional. 2$e vali!it' o( t$e la, !e&en!s on t$e nat%re o( t$e C5 lots an! b%il!ings t$ereon in .%estion. *( t$e &ro&ert' is o,ne! b' t$e m%nici&alit' ;meaning m%nici&al cor&oration< in its &%blic an! governmental ca&acit' t$e &ro&ert' is &%blic an! Congress $as absol%te control over it. B%t i( t$e &ro&ert' is o,ne! in its &rivate or &ro&rietar' ca&acit' t$en it is &atrimonial an! Congress $as no absol%te control. 2$e m%nici&alit' cannot be !e&rive! o( it ,it$o%t !%e &rocess an! &a'ment o( 9%st com&ensation. 2$e ca&acit' in ,$ic$ t$e &ro&ert' is $el! is $o,ever !e&en!ent on t$e %se to ,$ic$ it is inten!e! an! !evote!. #-2. 0/1. 2$e &ro&ert' o( &rovinces cities an! m%nici&alities is !ivi!e! into &ro&ert' (or &%blic %se an! &atrimonial &ro&ert'. #-2. 0/0. =ro&ert' (or &%blic %se in t$e &rovinces cities an! m%nici&alities consists o( t$e &rovincial roa!s cit' streets m%nici&al streets t$e s.%ares (o%ntains &%blic ,aters &romena!es an! &%blic ,or+s (or &%blic service &ai! (or b' sai! &rovinces cities or m%nici&alities. #ll ot$er &ro&ert' &ossesse! b' an' o( t$em is &atrimonial an! s$all be governe! b' t$is Co!e ,it$o%t &re9%!ice to t$e &rovisions o( s&ecial la,s. #&&l'ing t$e above cite! norm all t$e &ro&erties in .%estion e4ce&t t$e t,o ;/< lots %se! as Hig$ )c$ool &la'gro%n!s co%l! be consi!ere! as &atrimonial &ro&erties o( t$e (ormer Zamboanga &rovince. 3ven t$e ca&ital site t$e $os&ital an! le&rosari%m sites an! t$e sc$ool sites ,ill be consi!ere! &atrimonial (or t$e' are not (or &%blic %se. 2$e' ,o%l! (all %n!er t$e &$rase "&%blic ,or+s (or &%blic service" (or it $as been $el! t$at %n!er t$e e9%s!em generis r%le s%c$ &%blic ,or+s m%st be (or (ree an! in!iscriminate %se b' an'one 9%st li+e t$e &rece!ing en%merate! &ro&erties in t$e (irst &aragra&$ o( #rt 0/0. 7 2$e &la'gro%n!s $o,ever ,o%l! (it into t$is categor'. M%nici&alit' o( Catbalogan v. Director o( Lan!s an! M%nici&alit' o( 2acloban v. Director o( Lan!s: ca&itol site an! t$e sc$ool sites in m%nici&alities constit%te t$eir &atrimonial &ro&erties. 2$is res%lt is %n!erstan!able beca%se %nli+e in t$e classi(ication regar!ing )tate &ro&erties &ro&erties (or &%blic service in t$e m%nici&alities are not classi(ie! as &%blic. #ss%ming t$en t$e Civil Co!e classi(ication to be t$e c$osen norm t$e lo,er co%rt m%st be a((irme! e4ce&t ,it$ regar! to t$e t,o ;/< lots %se! as &la'gro%n!s. Norm obtaining %n!er t$e &rinci&les constit%ting t$e la, o( M%nici&al Cor&orations all t$ose o( t$e C5 &ro&erties in .%estion ,$ic$ are !evote! to &%blic service are !eeme! &%blicA t$e rest remain &atrimonial. @n!er t$is norm to be consi!ere! &%blic it is eno%g$ t$at t$e &ro&ert' be $el! an! !evote! (or governmental &%r&oses li+e local a!ministration &%blic e!%cation &%blic $ealt$ etc. H*N@N#NG#N K. D*-3C2O- OF L#ND): ,$ere t$e m%nici&alit' $as occ%&ie! lan!s !istinctl' (or &%blic &%r&oses s%c$ as (or t$e m%nici&al co%rt $o%se t$e &%blic sc$ool t$e &%blic mar+et or ot$er necessar' m%nici&al b%il!ing ,e ,ill in t$e absence o( &roo( to t$e contrar' &res%me a grant (rom t$e )tates in (avor o( t$e m%nici&alit'A b%t as in!icate! b' t$e ,or!ing t$at r%le ma' be invo+e! onl' as to &ro&ert' ,$ic$ is %se! !istinctl' (or &%blic &%r&oses...." K*@D# D3 2#N2OCO K. M@N*C*=#L CO@NC*L OF *LO*LO: m%nici&al &ro&erties necessar' (or governmental &%r&oses are &%blic in nat%re. 2$%s t$e a%to tr%c+s %se! b' t$e m%nici&alit' (or street s&rin+ling t$e &olice &atrol a%tomobile &olice stations an! concrete str%ct%res ,it$ t$e corres&on!ing lots %se! as mar+ets ,ere !eclare! e4em&t (rom e4ec%tion an! attac$ment since t$e' ,ere not &atrimonial &ro&erties. M@N*C*=#L*2: OF B#2#NG#) K). C#N2O): a m%nici&al lot ,$ic$ $a! al,a's been !evote! to sc$ool &%r&oses is one !e!icate! to &%blic %se an! is not &atrimonial &ro&ert' o( a m%nici&alit'. Follo,ing t$is classi(ication -e&%blic #ct 1518 is vali! inso(ar as it a((ects t$e lots %se! as ca&itol site sc$ool sites an! its gro%n!s $os&ital an! le&rosari%m sites an! t$e $ig$ sc$ool &la'gro%n! sites S a total o( /0 lots S since t$ese ,ere $el! b' t$e (ormer Zamboanga &rovince in its
/70

governmental ca&acit' an! t$ere(ore are s%b9ect to t$e absol%te control o( Congress. 6e notice! t$at t$e eig$t B%rleig$ lots above !escribe! are a!9oining eac$ ot$er an! in t%rn are bet,een t$e t,o lots ,$erein t$e B%rleig$ sc$ools are b%ilt as &er recor!s a&&earing $erein an! in t$e B%rea% o( Lan!s. Hence t$ere is s%((icient basis (or $ol!ing t$at sai! eig$t lots constit%te t$e a&&%rtenant gro%n!s o( t$e B%rleig$ sc$ools an! &arta+e o( t$e nat%re o( t$e same. -egar!ing t$e several b%il!ings e4isting on t$e lots aboveD mentione! t$e recor!s !o not !isclose ,$et$er t$e' ,ere constr%cte! at t$e e4&ense o( t$e (ormer =rovince o( Zamboanga. Consi!ering $o,ever t$e (act t$at sai! b%il!ings m%st $ave been erecte! even be(ore 181G ,$en Common,ealt$ #ct 18 ,as enacte! an! t$e (%rt$er (act t$at &rovinces t$en $a! no &o,er to a%t$oriBe constr%ction o( b%il!ings s%c$ as t$ose in t$e case at bar at t$eir o,n e4&ense 10 it can be ass%me! t$at sai! b%il!ings ,ere erecte! b' t$e National Government %sing national (%n!s. Hence Congress co%l! ver' ,ell !is&ose o( sai! b%il!ings in t$e same manner t$at it !i! ,it$ t$e lots in .%estion. B%t even ass%ming t$at &rovincial (%n!s ,ere %se! still t$e b%il!ings constit%te mere accessories to t$e lan!s ,$ic$ are &%blic in nat%re an! so t$e' (ollo, t$e nat%re o( sai! lan!s i.e. &%blic. Moreover sai! b%il!ings t$o%g$ locate! in t$e cit' ,ill not be (or t$e e4cl%sive %se an! bene(it o( cit' resi!ents (or t$e' co%l! be availe! o( also b' t$e &rovincial resi!ents. 2$e &rovince t$en S an! its s%ccessorsDinDinterest S are not reall' !e&rive! o( t$e bene(its t$ereo(. B%t -e&%blic #ct 1518 cannot be a&&lie! to !e&rive Zamboanga !el Norte o( its s$are in t$e val%e o( t$e rest o( t$e /G remaining lots ,$ic$ are &atrimonial &ro&erties since t$e' are not being %tiliBe! (or !istinctl' governmental &%r&oses. Moreover t$e (act t$at t$ese /G lots are registere! strengt$ens t$e &ro&osition t$at t$e' are tr%l' &rivate in nat%re. On t$e ot$er $an! t$at t$e /0 lots %se! (or governmental &%r&oses are also registere! is o( no signi(icance since registration cannot convert &%blic &ro&ert' to &rivate. 6e are more incline! to %&$ol! t$is latter vie,. 2$e controvers' $ere is more along t$e !omains o( t$e La, o( M%nici&al Cor&orations S )tate vs. =rovince S t$an along t$at o( Civil La,. Moreover t$is Co%rt is not incline! to $ol! t$at m%nici&al &ro&ert' $el! an! !evote! to &%blic service is in t$e same categor' as or!inar' &rivate &ro&ert'. 2$e conse.%ences are !ire. #s or!inar' &rivate &ro&erties t$e' can be levie! %&on an! attac$e!. 2$e' can even be ac.%ire! t$r% a!verse &ossession S all t$ese to t$e !etriment o( t$e local comm%nit'. Lastl' t$e classi(ication o( &ro&erties ot$er t$an t$ose (or &%blic %se in t$e m%nici&alities as &atrimonial %n!er #rt. 0/0 o( t$e Civil Co!e S is "... ,it$o%t &re9%!ice to t$e &rovisions o( s&ecial la,s." For &%r&ose o( t$is article t$e &rinci&les obtaining %n!er t$e La, o( M%nici&al Cor&orations can be consi!ere! as "s&ecial la,s". Hence t$e classi(ication o( m%nici&al &ro&ert' !evote! (or !istinctl' governmental &%r&oses as &%blic s$o%l! &revail over t$e Civil Co!e classi(ication in t$is &artic%lar case. Magta3as v. Pr#ce Properties Corp G PAGCOR Facts: =#GCO- lease! a &ortion o( a b%il!ing belonging to =r'ce =ro&erties renovate! an! e.%i&&e! t$e same an! &re&are! to ina%g%rate its casino t$ere !%ring t$e C$ristmas season. 2$e )angg%niang =anl%ngso! o( Caga'an !e Oro Cit' enacte! Or!inance No. 11C1 ,$ic$ &ro$ibits t$e iss%ance o( b%siness &ermits an! cancels e4isting b%siness &ermits to an' establis$ment (or t$e %sing an! allo,ing to be %se! its &remises or &ortions t$ereo( (or t$e o&eration o( casinos. =r'ce assaile! t$e or!inances be(ore t$e Co%rt o( #&&eals ,$ere it ,as 9oine! b' =#GCO- as intervenor an! s%&&lemental &etitioner. C# !eclare! t$e or!inances invali! an! iss%e! t$e ,rit &ra'e! (or to &ro$ibit t$eir en(orcement. M- !enie!. *ss%e: 6ON Or!inance 11C1 is %nconstit%tional. Basco v. =$ili&&ine #m%sements an! Gaming Cor&oration: s%staine! t$e constit%tionalit' o( t$e !ecree an! even cite! t$e bene(its o( t$e entit' to t$e national econom' as t$e t$ir! $ig$est reven%eDearner in t$e government ne4t onl' to t$e B*- an! t$e B%rea% o( C%stoms.
/7C
Mabelle O. Nebres | Local Governments Case Digests Caga'an !e Oro Cit' li+e ot$er local &olitical s%b!ivisions is
em&o,ere! to enact or!inances (or t$e &%r&oses in!icate! in t$e LGC. *t is e4&ressl' veste! ,it$ t$e &olice &o,er %n!er ,$at is +no,n as t$e General 6el(are Cla%se. *n a!!ition )ection 0C8 o( t$e sai! Co!e s&eci(icall' !eclares t$at t$e )angg%niang =anl%ngso! as t$e legislative bo!' o( t$e cit' s$all enact or!inances a&&rove resol%tions an! a&&ro&riate (%n!s (or t$e general ,el(are o( t$e cit' an! its in$abitants. 2$is section also a%t$oriBes t$e LG@s to reg%late &ro&erties an! b%sinesses ,it$in t$eir territorial limits in t$e interest o( t$e general ,el(are. =: t$e )angg%niang =anl%ngso! ma' &ro$ibit t$e o&eration o( casinos beca%se t$e' involve games o( c$ance ,$ic$ are !etrimental to t$e &eo&le. Gambling is not allo,e! b' general la, an! even b' t$e Constit%tion itsel(. 2$e legislative &o,er con(erre! %&on local government %nits ma' be e4ercise! over all +in!s o( gambling an! not onl' over "illegal gambling" as t$e res&on!ents erroneo%sl' arg%e. 3ven i( t$e o&eration o( casinos ma' $ave been &ermitte! %n!er =.D. 18G8 t$e government o( Caga'an !e Oro Cit' $as t$e a%t$orit' to &ro$ibit t$em ,it$in its territor' &%rs%ant to t$e a%t$orit' entr%ste! to it b' t$e LGC. )%c$ inter&retation is consonant ,it$ t$e &olic' o( local a%tonom' as man!ate! in #rticle ** )ection /C an! #rticle J o( t$e Constit%tion as ,ell as vario%s ot$er &rovisions t$erein see+ing to strengt$en t$e c$aracter o( t$e nation. *n giving t$e LG@s t$e &o,er to &revent or s%&&ress gambling an! ot$er social &roblems t$e LGC $as recogniBe! t$e com&etence o( s%c$ comm%nities to !etermine an! a!o&t t$e meas%res best e4&ecte! to &romote t$e general ,el(are o( t$eir in$abitants in line ,it$ t$e &olicies o( t$e )tate. Kali! Or!inance: 1< *t m%st not contravene t$e constit%tion or an' stat%te. /< *t m%st not be %n(air or o&&ressive. 1< *t m%st not be &artial or !iscriminator'. 0< *t m%st not &ro$ibit b%t ma' reg%late tra!e. C< *t m%st be general an! consistent ,it$ &%blic &olic'. G< *t m%st not be %nreasonable. @n!er )ec. 0C8 o( t$e LGC LG@s are a%t$oriBe! to &revent or s%&&ress among ot$ers "gambling an! ot$er &ro$ibite! games o( c$ance." Obvio%sl' t$is &rovision e4cl%!es games o( c$ance ,$ic$ are not &ro$ibite! b%t are in (act &ermitte! b' la,. 2$e &etitioners are less t$an acc%rate in claiming t$at t$e Co!e co%l! $ave e4cl%!e! s%c$ games o( c$ance b%t !i! not. *n (act it !oes. 2$e lang%age o( t$e section is clear an! %nmista+able. @n!er t$e r%le o( noscit%r a sociis a ,or! or &$rase s$o%l! be inter&rete! in relation to or given t$e same meaning o( ,or!s ,it$ ,$ic$ it is associate!. #ccor!ingl' ,e concl%!e t$at since t$e ,or! "gambling" is associate! ,it$ "an! ot$er &ro$ibite! games o( c$ance " t$e ,or! s$o%l! be rea! as re(erring to onl' illegal gambling ,$ic$ li+e t$e ot$er &ro$ibite! games o( c$ance m%st be &revente! or s%&&resse!. 2$e a&&arent (la, in t$e or!inances in .%estion is t$at t$e' contravene =.D. 18G8 an! t$e &%blic &olic' embo!ie! t$erein inso(ar as t$e' &revent =#GCO- (rom e4ercising t$e &o,er con(erre! on it to o&erate a casino in Caga'an !e Oro Cit'. 2$e &etitioners $ave an ingenio%s ans,er to t$is misgiving. 2$e' !en' t$at it is t$e or!inances t$at $ave c$ange! =.D. 18G8 (or an or!inance a!mitte!l' cannot &revail against a stat%te. 2$eir t$eor' is t$at t$e c$ange $as been ma!e b' t$e LGC itsel( ,$ic$ ,as also enacte! b' t$e national la,ma+ing a%t$orit'. *n t$eir vie, t$e !ecree $as been not reall' re&eale! b' t$e Co!e b%t merel' "mo!i(ie! &ro tanto" in t$e sense t$at =#GCO- cannot no, o&erate a casino over t$e ob9ection o( t$e local government %nit concerne!. 2$is mo!i(ication o( =.D. 18G8 b' t$e LGC is &ermissible beca%se one la, can c$ange or re&eal anot$er la,. *t seems to %s t$at t$e &etitioners are &la'ing ,it$ ,or!s. 6$ile insisting t$at t$e !ecree $as onl' been "mo!i(ie! &ro tanto " t$e' are act%all' arg%ing t$at it is alrea!' !ea! re&eale! an! %seless (or all intents an! &%r&oses beca%se t$e Co!e $as s$orn =#GCO- o( all &o,er to centraliBe an! reg%late casinos. )trictl' s&ea+ing its o&erations ma' no, be not onl' &ro$ibite! b' t$e local government %nitA in (act t$e &ro$ibition is not onl' !iscretionar' b%t man!ate! b' )ection 0C8 o( t$e Co!e i( t$e ,or! "s$all" as %se! t$erein is to be given its acce&te! meaning. Local government %nits $ave no, no c$oice b%t to &revent an! s%&&ress gambling ,$ic$ in t$e &etitionersH vie, incl%!es bot$ legal an! illegal gambling. @n!er t$is constr%ction =#GCO- ,ill $ave no more games o( c$ance to reg%late or centraliBe as t$e' m%st all be &ro$ibite! b' t$e local government %nits &%rs%ant to t$e man!ator' !%t' im&ose! %&on t$em b' t$e Co!e. *n t$is sit%ation =#GCO- cannot contin%e to e4ist
/7G

e4ce&t onl' as a toot$less tiger or a ,$ite ele&$ant an! ,ill no longer be able to e4ercise its &o,ers as a &rime so%rce o( government reven%e t$ro%g$ t$e o&eration o( casinos. *t is note,ort$' t$at t$e &etitioners $ave cite! onl' =ar. ;(< o( t$e re&ealing cla%se convenientl' !iscar!ing t$e rest o( t$e &rovision ,$ic$ &ainsta+ingl' mentions t$e s&eci(ic la,s or t$e &arts t$ereo( ,$ic$ are re&eale! ;or mo!i(ie!< b' t$e Co!e. )igni(icantl' =.D. 18G8 is not one o( t$em. # rea!ing o( t$e entire re&ealing cla%se ,$ic$ is re&ro!%ce! belo, ,ill !isclose t$e omission: )ec. C10. -e&ealing Cla%se. S ;a< Batas =ambansa Blg. 117 ot$er,ise +no,n as t$e "LGC " 34ec%tive Or!er No. 11/ ;1887< an! 34ec%tive Or!er No. 118 ;1888< are $ereb' re&eale!. ;b< =resi!ential Decree Nos. G80 1181 1C58 an! s%c$ ot$er !ecrees or!ers instr%ctions memoran!a an! iss%ances relate! to or concerning t$e baranga' are $ereb' re&eale!. ;c< 2$e &rovisions o( )ections / 1 an! 0 o( -e&%blic #ct No. 1818 regar!ing $os&ital (%n!A )ection 1 a ;1< an! b ;/< o( -e&%blic #ct. No. C007 regar!ing t$e )&ecial 3!%cation F%n!A =resi!ential Decree No. 100 as amen!e! b' =resi!ential Decree Nos. CC8 an! 1701A =resi!ential Decree No. /11 as amen!e!A =resi!ential Decree No. 01G as amen!e! b' =resi!ential Decree No. CC8A an! =resi!ential Decree Nos. 181 01G 0G0 077 C/G G1/ 7C/ an! 111G are $ereb' re&eale! an! ren!ere! o( no (orce an! e((ect. ;!< =resi!ential Decree No. 1C80 is $ereb' re&eale! inso(ar as it governs locall'D(%n!e! &ro9ects. ;e< 2$e (ollo,ing &rovisions are $ereb' re&eale! or amen!e! inso(ar as t$e' are inconsistent ,it$ t$e &rovisions o( t$is Co!e: )ections / 1G an! /8 o( =resi!ential Decree No. 750A )ections 1/ o( =resi!ential Decree No. 87 as amen!e!A )ections C/ C1 GG G7 G8 G8 75 71 7/ 71 an! 70 o( =resi!ential Decree No. 0G1 as amen!e!A an! )ection 1G o( =resi!ential Decree No. 87/ as amen!e! an! ;(< #ll general an! s&ecial la,s acts cit' c$arters !ecrees e4ec%tive or!ers &roclamations an! a!ministrative reg%lations or &art or &arts t$ereo( ,$ic$ are inconsistent ,it$ an' o( t$e &rovisions o( t$is Co!e are $ereb' re&eale! or mo!i(ie! accor!ingl'. F%rt$ermore it is a (amiliar r%le t$at im&lie! re&eals are not lig$tl' &res%me! in t$e absence o( a clear an! %nmista+able s$o,ing o( s%c$ intention. *n Lic$a%co P Co. v. #&ostol t$is Co%rt e4&laine!: 2$e cases relating to t$e s%b9ect o( re&eal b' im&lication all &rocee! on t$e ass%m&tion t$at i( t$e act o( later !ate clearl' reveals an intention on t$e &art o( t$e la,ma+ing &o,er to abrogate t$e &rior la, t$is intention m%st be given e((ectA b%t t$ere m%st al,a's be a s%((icient revelation o( t$is intention an! it $as become an %nben!ing r%le o( stat%tor' constr%ction t$at t$e intention to re&eal a (ormer la, ,ill not be im&%te! to t$e Legislat%re ,$en it a&&ears t$at t$e t,o stat%tes or &rovisions ,it$ re(erence to ,$ic$ t$e .%estion arises bear to eac$ ot$er t$e relation o( general to s&ecial. 2$ere is no s%((icient in!ication o( an im&lie! re&eal o( =.D. 18G8. On t$e contrar' as t$e &rivate res&on!ent &oints o%t =#GCO- is mentione! as t$e so%rce o( (%n!ing in t,o later enactments o( Congress to ,it -.#. 7158 creating a Boar! o( Claims %n!er t$e De&artment o( 7%stice (or t$e bene(it o( victims o( %n9%st &%nis$ment or !etention or o( violent crimes an! -.#. 7G08 &rovi!ing (or meas%res (or t$e sol%tion o( t$e &o,er crisis. =#GCO- reven%es are ta&&e! b' t$ese t,o stat%tes. 2$is ,o%l! s$o, t$at t$e =#GCOc$arter $as not been re&eale! b' t$e LGC b%t $as in (act been im&rove! as it ,ere to ma+e t$e entit' more res&onsive to t$e (iscal &roblems o( t$e government. *t is a canon o( legal $ermene%tics t$at instea! o( &itting one stat%te against anot$er in an inevitabl' !estr%ctive con(rontation co%rts m%st e4ert ever' e((ort to reconcile t$em remembering t$at bot$ la,s !eserve a becoming res&ect as t$e $an!i,or+ o( a coor!inate branc$ o( t$e government. On t$e ass%m&tion o( a con(lict bet,een =.D. 18G8 an! t$e Co!e t$e &ro&er action is not to %&$ol! one an! ann%l t$e ot$er b%t to give e((ect to bot$ b' $armoniBing t$em i( &ossible. 2$is is &ossible in t$e case be(ore %s. 2$e &ro&er resol%tion o( t$e &roblem at $an! is to $ol! t$at %n!er t$e LGC local government %nits ma' ;an! in!ee! m%st< &revent an! s%&&ress all +in!s o( gambling ,it$in t$eir territories e4ce&t onl' t$ose allo,e! b' stat%tes li+e =.D. 18G8. 2$e e4ce&tion reserve! in s%c$ la,s m%st be rea! into t$e Co!e to ma+e bot$ t$e Co!e an! s%c$ la,s e.%all' e((ective an! m%t%all' com&lementar'. 2$is a&&roac$ ,o%l! also a((irm t$at t$ere are in!ee! t,o +in!s o( gambling to ,it t$e illegal an! t$ose a%t$oriBe! b' la,. LegaliBe! gambling is not a mo!ern conce&tA it is &robabl' as ol! as illegal gambling i( not in!ee! more so.
/77

2$e &etitionersH s%ggestion t$at t$e Co!e a%t$oriBes t$em to &ro$ibit all +in!s o( gambling ,o%l! erase t$e !istinction bet,een t$ese t,o (orms o( gambling ,it$o%t a clear in!ication t$at t$is is t$e ,ill o( t$e legislat%re. =la%sibl' (ollo,ing t$is t$eor' t$e Cit' o( Manila co%l! b' mere or!inance &ro$ibit t$e =$ili&&ine C$arit' ),ee&sta+es O((ice (rom con!%cting a lotter' as a%t$oriBe! b' -.#. 11G8 an! B.=. 0/ or sto& t$e races at t$e )an LaBaro Hi&&o!rome as a%t$oriBe! b' -.#. 158 an! -.#. 881. *n lig$t o( all t$e above consi!erations ,e see no ,a' o( arriving at t$e concl%sion %rge! on %s b' t$e &etitioners t$at t$e or!inances in .%estion are vali!. On t$e contrar' ,e (in! t$at t$e or!inances violate =.D. 18G8 ,$ic$ $as t$e c$aracter an! (orce o( a stat%te as ,ell as t$e &%blic &olic' e4&resse! in t$e !ecree allo,ing t$e &la'ing o( certain games o( c$ance !es&ite t$e &ro$ibition o( gambling in general. 2$e rationale o( t$e re.%irement t$at t$e or!inances s$o%l! not contravene a stat%te is obvio%s. M%nici&al governments are onl' agents o( t$e national government. Local co%ncils e4ercise onl' !elegate! legislative &o,ers con(erre! on t$em b' Congress as t$e national la,ma+ing bo!'. 2$e !elegate cannot be s%&erior to t$e &rinci&al or e4ercise &o,ers $ig$er t$an t$ose o( t$e latter. *t is a $eres' to s%ggest t$at t$e local government %nits can %n!o t$e acts o( Congress (rom ,$ic$ t$e' $ave !erive! t$eir &o,er in t$e (irst &lace an! negate b' mere or!inance t$e man!ate o( t$e stat%te. M%nici&al cor&orations o,e t$eir origin to an! !erive t$eir &o,ers an! rig$ts ,$oll' (rom t$e legislat%re. *t breat$es into t$em t$e breat$ o( li(e ,it$o%t ,$ic$ t$e' cannot e4ist. #s it creates so it ma' !estro'. #s it ma' !estro' it ma' abri!ge an! control. @nless t$ere is some constit%tional limitation on t$e rig$t t$e legislat%re mig$t b' a single act an! i( ,e can s%&&ose it ca&able o( so great a (oll' an! so great a ,rong s,ee& (rom e4istence all o( t$e m%nici&al cor&orations in t$e )tate an! t$e cor&oration co%l! not &revent it. 6e +no, o( no limitation on t$e rig$t so (ar as to t$e cor&oration t$emselves are concerne!. 2$e' are so to &$rase it t$e mere tenants at ,ill o( t$e legislat%re. 2$is basic relations$i& bet,een t$e national legislat%re an! t$e local government %nits $as not been en(eeble! b' t$e ne, &rovisions in t$e Constit%tion strengt$ening t$e &olic' o( local a%tonom'. 6it$o%t meaning to !etract (rom t$at &olic' ,e $ere con(irm t$at Congress retains control o( t$e local government %nits alt$o%g$ in signi(icantl' re!%ce! !egree no, t$an %n!er o%r &revio%s Constit%tions. 2$e &o,er to create still incl%!es t$e &o,er to !estro'. 2$e &o,er to grant still incl%!es t$e &o,er to ,it$$ol! or recall. 2r%e t$ere are certain notable innovations in t$e Constit%tion li+e t$e !irect con(erment on t$e local government %nits o( t$e &o,er to ta4 1/ ,$ic$ cannot no, be ,it$!ra,n b' mere stat%te. B' an! large $o,ever t$e national legislat%re is still t$e &rinci&al o( t$e local government %nits ,$ic$ cannot !e(' its ,ill or mo!i(' or violate it. Co%rt $ol!s t$at t$e &o,er o( =#GCO- to centraliBe an! reg%late all games o( c$ance incl%!ing casinos on lan! an! sea ,it$in t$e territorial 9%ris!iction o( t$e =$ili&&ines remains %nim&aire!. =.D. 18G8 $as not been mo!i(ie! b' t$e LGC ,$ic$ em&o,ers t$e local government %nits to &revent or s%&&ress onl' t$ose (orms o( gambling &ro$ibite! b' la,. Casino gambling is a%t$oriBe! b' =.D. 18G8. 2$is !ecree $as t$e stat%s o( a stat%te t$at cannot be amen!e! or n%lli(ie! b' a mere or!inance. Hence it ,as not com&etent (or t$e )angg%niang =anl%ngso! o( Caga'an !e Oro Cit' to enact Or!inance No. 11C1 &ro$ibiting t$e %se o( b%il!ings (or t$e o&eration o( a casino an! Or!inance No. 117CD81 &ro$ibiting t$e o&eration o( casinos. (olicitor General v. Metro Manila Authorit# Facts: Mala&ira com&laine! to t$e Co%rt t$at ,$en $e ,as sto&&e! (or an allege! tra((ic violation $is !riverHs license ,as con(iscate! in W%eBon Cit'. 2$e CaloocanDManila Drivers an! O&erators #ssociation t$en sent a letter to t$e Co%rt as+ing ,$o s$o%l! en(orce t$e !ecision in t$e aboveDmentione! case ,$et$er t$e' co%l! see+ !amages (or con(iscation o( t$eir !riverHs licenses an! ,$ere t$e' s$o%l! (ile t$eir com&laints. Ot$er letters ,ere receive! b' t$e Co%rt com&laining against t$e con(iscation o( !riverHs licenses. )till anot$er com&laint ,as receive! b' t$e Co%rt (or removal o( a (ront license &late an! !river>s license. 2$e tra((ic en(orcers invo+e! Or!inance No. 7 )eries o( 1888 o( Man!al%'ong a%t$oriBing t$e con(iscation o( !riverHs licenses an! t$e removal o( license &lates o( motor ve$icles (or tra((ic violations
/78

an! a memoran!%m !ate! Febr%ar' /7 1881 (rom t$e District Comman!er o( t$e 6estern 2ra((ic District o( t$e =$ili&&ine National =olice a%t$oriBing s%c$ sanction %n!er certain con!itions. Director General NaBareno o( t$e =$ili&&ine National =olice ass%re! t$e Co%rt in $is o,n Comment t$at $is o((ice $a! never a%t$oriBe! t$e removal o( t$e license &lates o( illegall' &ar+e! ve$icles an! t$at $e $a! in (act !irecte! (%ll com&liance ,it$ t$e aboveD mentione! !ecision in a memoran!%m co&' o( ,$ic$ $e attac$e! entitle! -emoval o( Motor Ke$icle License =lates an! !ate! Febr%ar' /8 1881. 2anoDan on t$e ot$er $an! arg%e! t$at t$e Gonong !ecision &ro$ibite! onl' t$e removal o( license &lates an! not t$e con(iscation o( !riverHs licenses. On Ma' /0 1885 t$e Metro&olitan Manila #%t$orit' iss%e! Or!inance No. 11 )eries o( 1881 a%t$oriBing itsel( "to !etac$ t$e license &late?to, an! im&o%n! atten!e!? %natten!e!? aban!one! motor ve$icles illegall' &ar+e! or obstr%cting t$e (lo, o( tra((ic in Metro Manila." On 7%l' / 1881 t$e Co%rt iss%e! a resol%tion on Or! 11: sec / ,$ic$ allo,s t$e Metro&olitan Manila #%t$orit' t$r% t$e 2ra((ic O&eration Center is a%t$oriBe! to !etac$ t$e license &late?to, an! im&o%n! atten!e!?%natten!e!?aban!one! motor ve$icles illegall' &ar+e! or obstr%cting t$e (lo, o( tra((ic in Metro Manila a&&ears to be in con(lict ,it$ t$e !ecision o( t$e Co%rt in t$e case at bar ,$ere it ,as $el! t$at t$e license &lates o( motor ve$icles ma' not be !etac$e! e4ce&t onl' %n!er t$e con!itions &rescribe! in LO* 01. #!!itionall' t$e Co%rt $as receive! several com&laints against t$e con(iscation b' &olice a%t$orities o( !riverHs licenses (or allege! tra((ic violations ,$ic$ sanction is accor!ing to t$e sai! !ecision not among t$ose t$at ma' be im&ose! %n!er =D 1G5C. Comments re.%ire!. MM#: !e(en!e! t$e sai! or!inance on t$e gro%n! t$at it ,as a!o&te! &%rs%ant to t$e &o,ers con(erre! %&on it b' 3O 18/. *t &artic%larl' cite! )ection / t$ereo( vesting in t$e Co%ncil ;its governing bo!'< t$e res&onsibilit' among ot$ers o(: 1. Form%lation o( &olicies on t$e !eliver' o( basic services re.%iring coor!ination or consoli!ation (or t$e #%t$orit'A an! /. =rom%lgation o( resol%tions an! ot$er iss%ances o( metro&olitan ,i!e a&&lication a&&roval o( a co!e o( basic services re.%iring coor!ination an! e4ercise o( its r%leDma+ing &o,ers. 2$e #%t$orit' arg%e! t$at t$ere ,as no con(lict bet,een t$e !ecision an! t$e or!inance beca%se t$e latter ,as meant to s%&&lement an! not s%&&lant t$e latter. *t stresse! t$at t$e !ecision itsel( sai! t$at t$e con(iscation o( license &lates ,as invali! in t$e absence o( a vali! la, or or!inance ,$ic$ ,as ,$' Or!inance No. 11 ,as enacte!. 2$e #%t$orit' also &ointe! o%t t$at t$e or!inance co%l! not be attac+e! collaterall' b%t onl' in a !irect action c$allenging its vali!it'. )olGen: t$e or!inance ,as n%ll an! voi! beca%se it re&resente! an invali! e4ercise o( a !elegate! legislative &o,er. 2$e (la, in t$e meas%re ,as t$at it violate! e4isting la, s&eci(icall' =D 1G5C ,$ic$ !oes not &ermit an! so im&lie!l' &ro$ibits t$e removal o( license &lates an! t$e con(iscation o( !riverHs licenses (or tra((ic violations in Metro&olitan Manila. He ma!e no mention $o,ever o( t$e allege! im&ro&riet' o( e4amining t$e sai! or!inance in t$e absence o( a (ormal c$allenge to its vali!it'. On October /0 1881 t$e O((ice o( t$e )olicitor General s%bmitte! a motion (or t$e earl' resol%tion o( t$e .%estione! sanctions to remove once an! (or all t$e %ncertaint' o( t$eir vali!it'. # similar motion ,as (ile! b' t$e Metro&olitan Manila #%t$orit' ,$ic$ reiterate! its contention t$at t$e inci!ents in .%estion s$o%l! be !ismisse! beca%se t$ere ,as no act%al case or controvers' be(ore t$e Co%rt. 2$e Metro&olitan Manila #%t$orit' is correct in invo+ing t$e !octrine t$at t$e vali!it' o( a la, or act can be c$allenge! onl' in a !irect action an! not collaterall'. 2$at is in!ee! t$e settle! &rinci&le. Ho,ever t$at r%le is not in(le4ible an! ma' be rela4e! b' t$e Co%rt %n!er e4ce&tional circ%mstances s%c$ as t$ose in t$e &resent controvers'. 2$e )olicitor General notes t$at t$e &ractices com&laine! o( $ave create! a great !eal o( con(%sion among motorists abo%t t$e state o( t$e la, on t$e .%estione! sanctions. More im&ortantl' $e maintains t$at t$ese sanctions are illegal being violative o( la, an! t$e Gonong !ecision an! s$o%l! t$ere(ore be sto&&e!. 6e also note t$e !ist%rbing re&ort t$at one &oliceman ,$o con(iscate! a !riverHs license !ismisse! t$e Gonong !ecision as ",rong" an! sai! t$e &olice ,o%l! not sto& t$eir "$abit" %nless t$e' receive! or!ers "(rom t$e to&." -egrettabl' not one o( t$e com&lainants $as (ile! a (ormal c$allenge to t$e or!inances incl%!ing Monsanto an! 2rieste ,$o are la,'ers an! co%l! $ave been more assertive o( t$eir rig$ts. *ss%e: 6ON MM# Or! 11 an! Man!al%'ong Or! 7 are vali!. NO. MM# s%stains Or!inance No. 11 )eries o( 1881 %n!er t$e s&eci(ic a%t$orit' con(erre! %&on it b' 3O 18/ ,$ile Or!inance No. 7 )eries o( 1888 is 9%sti(ie! on t$e basis o(
/78

t$e General 6el(are Cla%se embo!ie! in t$e LGC. *t is not !is&%te! t$at bot$ meas%res ,ere enacte! to &romote t$e com(ort an! convenience o( t$e &%blic an! to alleviate t$e ,orsening tra((ic &roblems in Metro&olitan Manila !%e in large &art to violations o( tra((ic r%les. vali! !elegation o( legislative &o,er: 1< t$e com&leteness o( t$e stat%te ma+ing t$e !elegationA an! /< t$e &resence o( a s%((icient stan!ar!. @n!er t$e (irst re.%irement t$e stat%te m%st leave t$e legislat%re com&lete in all its terms an! &rovisions s%c$ t$at all t$e !elegate ,ill $ave to !o ,$en t$e stat%te reac$es it is to im&lement it. 6$at onl' can be !elegate! is not t$e !iscretion to !etermine ,$at t$e la, s$all be b%t t$e !iscretion to !etermine $o, t$e la, s$all be en(orce!. 2$is $as been !one in t$e case at bar. #s a secon! re.%irement t$e en(orcement ma' be e((ecte! onl' in accor!ance ,it$ a s%((icient stan!ar! t$e (%nction o( ,$ic$ is to ma& o%t t$e bo%n!aries o( t$e !elegateHs a%t$orit' an! t$%s "&revent t$e !elegation (rom r%nning riot." 2$is re.%irement $as also been met. *t is settle! t$at t$e "convenience an! ,el(are" o( t$e &%blic &artic%larl' t$e motorists an! &assengers in t$e case at bar is an acce&table s%((icient stan!ar! to !elimit t$e !elegateHs a%t$orit'. B%t t$e &roblem be(ore %s is not t$e vali!it' o( t$e !elegation o( legislative &o,er. 2$e .%estion ,e m%st resolve is t$e vali!it' o( t$e e4ercise o( s%c$ !elegate! &o,er. 2$e meas%res in .%estion are enactments o( local governments acting onl' as agents o( t$e national legislat%re. Necessaril' t$e acts o( t$ese agents m%st re(lect an! con(orm to t$e ,ill o( t$eir &rinci&al. 2o test t$e vali!it' o( s%c$ acts in t$e s&eci(ic case no, be(ore %s ,e a&&l' t$e &artic%lar re.%isites o( a vali! or!inance as lai! !o,n b' t$e acce&te! &rinci&les governing m%nici&al cor&orations. 3lliot: a m%nici&al or!inance to be vali!: 1< m%st not contravene t$e Constit%tion or an' stat%teA /< m%st not be %n(air or o&&ressiveA 1< m%st not be &artial or !iscriminator'A 0< m%st not &ro$ibit b%t ma' reg%late tra!eA C< m%st not be %nreasonableA an! G< m%st be general an! consistent ,it$ &%blic &olic'.
Gonong !ecision: meas%res %n!er consi!eration !o not &ass

t$e (irst criterion beca%se t$e' !o not con(orm to e4isting la,. 2$e &ertinent la, is =D 1G5C ,$ic$ !oes not allo, eit$er t$e removal o( license &lates or t$e con(iscation o( !riverHs licenses (or tra((ic violations committe! in Metro&olitan Manila. 2$ere is not$ing in t$e (ollo,ing &rovisions o( t$e !ecree a%t$oriBing t$e Metro&olitan Manila Commission ;an! no, t$e Metro&olitan Manila #%t$orit'< to im&ose s%c$ sanctions. *n (act t$e &rovisions &ro$ibit t$e im&osition o( s%c$ sanctions in Metro&olitan Manila. 2$e Commission ,as allo,e! to "im&ose (ines an! ot$er,ise !isci&line" tra((ic violators onl' "in s%c$ amo%nts an! %n!er s%c$ &enalties as are $erein &rescribe! " t$at is b' t$e !ecree itsel(. No,$ere is t$e removal o( license &lates !irectl' im&ose! b' t$e !ecree or at least allo,e! b' it to be im&ose! b' t$e Commission. Notabl' )ection C t$ereo( e4&ressl' &rovi!es t$at "in case o( tra((ic violations t$e !riverHs license s$all not be con(iscate!." 2$ese restrictions are a&&licable to t$e Metro&olitan Manila #%t$orit' an! all ot$er local &olitical s%b!ivisions com&rising Metro&olitan Manila incl%!ing t$e M%nici&alit' o( Man!al%'ong. 2$e re.%irement t$at t$e m%nici&al enactment m%st not violate e4isting la, e4&lains itsel(. Local &olitical s%b!ivisions are able to legislate onl' b' virt%e o( a vali! !elegation o( legislative &o,er (rom t$e national legislat%re ;e4ce&t onl' t$at t$e &o,er to create t$eir o,n so%rces o( reven%e an! to lev' ta4es is con(erre! b' t$e Constit%tion itsel(<. 2$e' are mere agents veste! ,it$ ,$at is calle! t$e &o,er o( s%bor!inate legislation. #s !elegates o( t$e Congress t$e local government %nit cannot contravene b%t m%st obe' at all times t$e ,ill o( t$eir &rinci&al. *n t$e case be(ore %s t$e enactments in .%estion ,$ic$ are merel' local in origin cannot &revail against t$e !ecree ,$ic$ $as t$e (orce an! e((ect o( a stat%te. 2$e sel(Dserving lang%age o( )ection / o( t$e c$allenge! or!inance is ,ort$ noting. C%rio%sl' it is t$e meas%re itsel( ,$ic$ ,as enacte! b' t$e Metro&olitan Manila #%t$orit' t$at a%t$oriBes t$e Metro&olitan Manila #%t$orit' to im&ose t$e .%estione! sanction. Killacorta vs Bernar!o: t$e Co%rt n%lli(ie! an or!inance enacte! b' t$e M%nici&al Boar! o( Dag%&an Cit' (or being violative o( t$e Lan! -egistration #ct. 2$e &o,ers o( t$e
/85

boar! in enacting s%c$ a la%!able or!inance cannot be $el! vali! ,$en it s$all im&e!e t$e e4ercise o( rig$ts grante! in a general la, an!?or ma+e a general la, s%bor!inate! to a local or!inance. 2o s%stain t$e or!inance ,o%l! be to o&en t$e (loo!gates to ot$er or!inances amen!ing an! so violating national la,s in t$e g%ise o( im&lementing t$em. 2$%s or!inances co%l! be &asse! im&osing a!!itional re.%irements (or t$e iss%ance o( marriage licenses to &revent bigam'A t$e registration o( ve$icles to minimiBe carna&&ingA t$e e4ec%tion o( contracts to (orestall (ra%!A t$e vali!ation o( &arts to !eter im&ost%reA t$e e4ercise o( (ree!om o( s&eec$ to re!%ce !isor!erA an! so on. 2$e list is en!less b%t t$e means even i( t$e en! be vali! ,o%l! be %ltra vires. 2$e meas%res in .%estion !o not merel' a!! to t$e re.%irement o( =D 1G5C b%t ,orse im&ose sanctions t$e !ecree !oes not allo, an! in (act act%all' &ro$ibits. *n so !oing t$e or!inances !isregar! an! violate an! in e((ect &artiall' re&eal t$e la,. 6e $ere em&$asiBe t$e r%ling in t$e Gonong case t$at =D 1G5C a&&lies onl' to t$e Metro&olitan Manila area. *t is an e4ce&tion to t$e general a%t$orit' con(erre! b' -.#. No. 011 on t$e Commissioner o( Lan! 2rans&ortation to &%nis$ violations o( tra((ic r%les else,$ere in t$e co%ntr' ,it$ t$e sanction t$erein &rescribe! incl%!ing t$ose $ere .%estione!. Manila %lectric Co. v. Cit# o! Manila Facts: On October /5 185/ t$e =$ili&&ine Commission enacte! #ct No. 080 section 1 o( ,$ic$ a%t$oriBes t$e Cit' o( Manila to grant to t$e "&erson or &ersons ma+ing t$e most (avorable bi! as $ereina(ter &rovi!e! a (ranc$ise to constr%ct an! maintain in t$e streets o( Manila an! its s%b%rbs an electric street rail,a' an! a (ranc$ise to constr%ct maintain an! o&erate an electric lig$t $eat an! &o,er s'stem in t$e Cit' o( Manila an! its s%b%rbs." B' virt%e o( sai! #ct t$e Cit' o( Manila &asse! on Marc$ /0 1851 Or!inance No. 00 granting t$e (ranc$ise to one C$arles M. ),i(t as t$e $ig$est bi!!er. )ai! #ct No. 080 an! Or!inance No. 00 ,ere later amen!e! b' #ct No. 111/ an! Or!inances Nos. 75 71 100 1G7 18/ /7/ 085 851 888 11G/ 1/00 an! 107G ,$ic$ !eal ,it$ t$e sale an! trans(er o( t$e (ranc$ise o( t$e Com&aRia !e 2ranvias !e Fili&inas to t$e &lainti(( in #&ril 1850. On Marc$ /7 1851 t$e &lainti(( t$en +no,n as "Manila -ail,a's an! Lig$t Com&an'" ac.%ire! t$e sai! (ranc$ise (rom C$arles M. ),i(t toget$er ,it$ all t$e rig$ts &rivileges an! obligations a&&%rtenant t$ereto. 2$e &lainti(( $as since t$en establis$e! electric car lines along certain streets o( t$e Cit' o( Manila an! s%b%rbs ,$ic$ $ave no, an! t$en been altere! ,it$ t$e e4&ress consent eit$er o( t$e Cit' o( Manila or o( t$e =$ili&&ine Legislat%re. #s grantee o( t$e (ranc$ise t$e &lainti(( cor&oration agree! to &a' an! $as to !ate been &a'ing to t$e Cit' o( Manila / 1?/ &er cent "o( t$e (ares collecte! an! tic+ets sol! ,it$in t$e limits o( t$e Cit' o( Manila an! t$e same &ercentage o( (ares collecte! an! tic+ets sol! ,it$o%t t$e sai! limits to t$e &ro&er m%nici&alit' or m%nici&alities o( t$e =rovince o( -iBal." *n 18/7 t$e &lainti(( a&&lie! (or an! obtaine! (rom t$e =%blic )ervice Commission certi(icates o( &%blic convenience to o&erate as it !i! in 18/8 an a%tob%s service along t$e streets !istricts an! s%b%rbs o( t$e Cit' o( Manila not covere! b' its electric car lines. #lleging t$at t$ese a%tob%s service ,as incl%!e! in t$e (ranc$ise grante! t$e &lainti(( %n!er Or!inance No. 00 t$e !e(en!ant an! a&&ellee Cit' o( Manila collecte! (rom t$e &lainti(( S ,$o $a! to &a' %n!er &rotest S a ta4 o( / 1?/ &er cent o( t$e (ares collecte! an! tic+et sol! in its a%tob%s lines ,it$in t$e Cit' o( Manila (rom #&ril 18/8 to November 181/ amo%nting to =01 8G8.5G. 2$e &resent action ,as instit%te! to recover t$is ta4. 2$e &lainti(( iss%es trans(er tic+ets ,$ic$ entitle t$e $ol!er o( reg%lar (are to trans(er (rom a street car to an a%tob%s an! viceD versa ,it$o%t e4tra c$arge alt$o%g$ t$is &rivilege is not e4ten!e! to Bone (are &assengers. *ss%e: 6ON t$e a%tob%s b%siness o( t$e &lainti(( is incl%!e! in t$e (ranc$ise grante! to it b' Or!inance No. 00 o( t$e Cit' o( Manila an! in case it is i( t$e !e(en!ant $as an' rig$t to collect t$e ta4 o( / 1?/ &er cent (rom t$e (ares collecte! an! tic+ets sol! in t$e b%siness as &rescribe! in sai! or!inance. )ection / o( #ct No. 111/ amen!ing Or!inance No. 00 o( t$e Cit' o( Manila inserte! bet,een &aragra&$s / an! 1 o( t$e (irst &art o( sai! or!inance t$e (ollo,ing &aragra&$ / ;a<: 2$e Manila 3lectric -ailroa! an! Lig$t Com&an' s$all be a%t$oriBe! to ma+e e4cavations an! constr%ctions (or t$e &%r&oses &rescribe! in =art One o( sai! Or!inance
/81

N%mbere! Fort'D(o%r %&on s%c$ (%rt$er streets t$oro%g$(ares bri!ges an! &%blic &laces ,it$in t$e Cit' o( Manila as ma' (rom time to time be a&&rove! b' t$e M%nici&al Boar!. 2$e &%r&ose o( t$is legal &rovision a%t$oriBing t$e Manila 3lectric Com&an' to ma+e e4cavations an! constr%ctions %&on (%rt$er streets t$oro%g$(ares bri!ges an! &%blic &laces ,it$in t$e Cit' o( Manila is no ot$er t$an t$e constr%ction an! maintenance o( a net o( electric car lines. 2$is broa!ening o( t$e a%t$oriBation cannot be constr%e! as &ermitting t$e &lainti(( to establis$ a%tob%s lines along t$e streets o( Manila an! s%b%rbs not s&eci(ie! in t$e original a%t$oriBation beca%se as ,e $ave alrea!' sai! t$e &%r&ose o( t$e a!!itional a%t$oriBation ,as to enable t$e &lainti(( to constr%ct an! maintain a net o( electric car lines in ot$er streets o( Manila. F%rt$ermore to establis$ a%tob%s lines it is not necessar' to ma+e e4cavations %&on t$e streets. 2$is is onl' re.%ire! ,$en la'ing o%t rails (or electric cars. Neit$er t$e letter nor t$e s&irit o( t$e la, t$ere(ore a%t$oriBes t$at t$e (ranc$ise grante! t$e &lainti(( b' t$e Cit' o( Manila be constr%e! to incl%!e t$e establis$ment o( a%tob%s lines. *t is tr%e t$at in t$e case o( t$e Cit' o( Manila vs. =%blic )ervice Commission t$is co%rt inter&reting &aragra&$ 0 o( #ct No. 080 ,$ic$ a%t$oriBes t$e &lainti(( b' virt%e o( its (ranc$ise to mo!i(' im&rove or c$ange its s'stem o( electric rail,a's s%c$ as t$e &rogress o( science an! t$e !evelo&ment o( motive &o,er ma' ma+e reasonable an! &ro&er sai! t$at t$e &lainti(( mig$t aban!on t$e %se o( electric cars an! s%bstit%te a%tob%sses in t$eir stea! ,$ic$ is a better means o( trans&ortation an! %n!er t$e (ranc$ise t$e grantee is a%t$oriBe! to ma+e im&rovements in its s'stem ,it$ t$e a&&roval o( t$e Cit' o( Manila. 2$at case !ealt ,it$ t$e s%bstit%tion o( a%tob%s lines along t$e same streets an! &%blic t$oro%g$(ares ,$ere electric car lines alrea!' e4iste!. *t ,as not t$e intention o( t$is co%rt an! it $as not so !eclare! t$at t$e Manila 3lectric Com&an' cannot establis$ a%tob%s lines along streets an! &%blic t$oro%g$(ares ,$ere electric rail,a's $ave not 'et been establis$e!. 6$en &%blic convenience so re.%ires t$e =$ili&&ine Legislat%re can a%t$oriBe ot$er trans&ortation com&anies to %se t$e streets an! &%blic t$oro%g$(ares ,$ere t$e Manila 3lectric Com&an' $as not establis$e! electric rail,a's nor signi(ie! its intention to !o so since s%c$ a%t$oriBation !oes not violate t$e terms an! con!itions o( t$e &lainti((Hs (ranc$ise. *m&lie!l' t$is ,as !one ,$en it create! t$e o((ice o( t$e =%blic )ervice Commission c$arge! ,it$ t$e tas+ o( loo+ing a(ter t$e com(ort o( t$e &%blic as regar!s trans&ortation ,it$ &o,er to grant a certi(icate o( &%blic convenience to a com&an' !esiring to o&erate a &assenger trans&ortation service ,$en in its 9%!gment it ,ill serve t$e interest o( t$e &%blic. Li+e an' ot$er com&an' engage! in &assenger trans&ortation t$e Manila 3lectric Com&an' $as t$e rig$t to sec%re (rom t$e =%blic )ervice Commission a certi(icate o( &%blic convenience a%t$oriBing it to establis$ a%tob%s lines (or &%blic trans&ortation. 2$is means o( trans&ortation being !istinct an! !i((erent (rom t$e one a%t$oriBe! %n!er t$e (ranc$ise grante! to it t$e Manila 3lectric Com&an' is not controlle! is not controlle! b' t$at (ranc$ise ,it$ res&ect to its a%tob%s service b%t b' t$e la, t$at reg%late t$e o&eration o( lan! trans&ortation com&anies ren!ering service to t$e &%blic. Neit$er can it be com&elle! to &a' to t$e Cit' o( Manila t$e ta4 o( / 1?/ &er cent o( t$e (ares collecte! an! tic+ets sol! ,it$in t$e cit' limits (or %sing a%tob%sses ,$ic$ $ave no relation at all ,it$ its electric rail,a's alrea!' e4isting or 'et to be establis$e!. 2$e (act t$at t$e Manila 3lectric Com&an' iss%es trans(er tic+et ,$ic$ &ermit &%rc$asers o( reg%lar (ares ;not Bone (ares< coming (rom o%tsi!e t$e Cit' o( Manila to trans(er (rom a street car to an a%tob%s an! viceDversa !oes not ma+e &lainti((Hs a%tob%s s'stem a &art o( its rail,a' s'stem since s%c$ iss%ance o( trans(er tic+ets is onl' acci!ent an! not essential in t$e o&eration o( its rail,a' s'stem establis$e! %n!er t$e a%t$orit' o( its (ranc$ise. Laguna La:e *evelopment Authorit# v. CA Facts: -# 08C5 ,as enacte! creating t$e LLD# to carr' o%t environmental &rotection an! ecolog' navigational sa(et' an! s%stainable !evelo&ment. =D 811 amen!e! t$e -# beca%se o( t$e concern (or t$e ra&i! e4&ansion o( Metro&olitan Manila t$e s%b%rbs
/8/

an! t$e la+es$ore to,ns o( Lag%na !e Ba' combine! ,it$ c%rrent an! &ros&ective %ses o( t$e la+e (or m%nici&alDin!%strial ,ater s%&&l' irrigation (is$eries an! t$e li+e. 2o more e((ectivel' &er(orm t$e role o( t$e #%t$orit' 3O 8/7 (%rt$er !e(ine! an! enlarge! t$e (%nctions an! &o,ers o( t$e #%t$orit' an! name! an! en%merate! t$e to,ns cities an! &rovinces encom&asse! b' t$e term "Lag%na !e Ba' -egion". )ection /8 o( =D 811 !e(ine! t$e term "Lag%na La+e" in t$is manner: 6$enever Lag%na La+e or la+e is %se! in t$is #ct t$e same s$all re(er to Lag%na !e Ba' ,$ic$ is t$at area covere! b' t$e la+e ,ater ,$en it is at t$e average ann%al ma4im%m la+e level o( elevation 1/.C5 meters as re(erre! to a !at%m 15.55 meters belo, mean lo,er lo, ,ater ;M.L.L.6<. Lan!s locate! at an! belo, s%c$ elevation are &%blic lan!s ,$ic$ (orm &art o( t$e be! o( sai! la+e.2$en came -e&%blic #ct No. 71G5 t$e LGC o( 1881. 2$e m%nici&alities in t$e Lag%na La+e -egion inter&rete! t$e &rovisions o( t$is la, to mean t$at t$e ne,l' &asse! la, gave m%nici&al governments t$e e4cl%sive 9%ris!iction to iss%e (is$ing &rivileges ,it$in t$eir m%nici&al ,aters beca%se o( -.#. 71G5. M%nici&al governments t$ere%&on ass%me! t$e a%t$orit' to iss%e (is$ing &rivileges an! (is$&en &ermits. Big (is$&en o&erators too+ a!vantage o( t$e occasion to establis$ (is$&ens an! (is$cages to t$e consternation o( t$e #%t$orit'. @nreg%late! (is$&ens an! (is$cages as o( 7%l' 188C occ%&ie! almost oneDt$ir! o( t$e entire la+e ,ater s%r(ace area increasing t$e occ%&ation !rasticall' (rom 7 555 $ectares in 1885 to almost /1 555 $ectares in 188C. 2$e Ma'orHs &ermit to constr%ct (is$&ens an! (is$cages ,ere all %n!erta+en in violation o( t$e &olicies a!o&te! b' t$e #%t$orit' on (is$&en Boning an! t$e Lag%na La+e carr'ing ca&acit'. 2o be s%re t$e im&lementation b' t$e la+es$ore m%nici&alities o( se&arate in!e&en!ent &olicies in t$e o&eration o( (is$&ens an! (is$cages ,it$in t$eir claime! territorial m%nici&al ,aters in t$e la+e an! t$eir in!iscriminate grant o( (is$&en &ermits $ave alrea!' sat%rate! t$e la+e area ,it$ (is$&ens t$ereb' aggravating t$e c%rrent environmental &roblems an! ecological stress o( Lag%na La+e. -amos t$en iss%e! instr%ctions t$at all str%ct%res in t$e L!B not registere! ,it$ t$e LLD# are illegal. -eacting t$ereto t$e a((ecte! (is$&en o,ners (ile! in9%nction cases against t$e #%t$orit' be(ore vario%s -2Cs. 2$e #%t$orit' (ile! motions to !ismiss t$e cases against it on 9%ris!ictional gro%n!s. 2$e motions to !ismiss ,ere invariabl' !enie!. Mean,$ile tem&orar' restraining or!er?,rits o( &reliminar' man!ator' in9%nction ,ere iss%e! in Civil Cases Nos. G01/0 7C8 an! CGG en9oining t$e #%t$orit' (rom !emolis$ing t$e (is$&ens an! similar str%ct%res in .%estion. Hence t$e $erein &etition (or certiorari &ro$ibition an! in9%nction G.-. Nos. 1/58GCD71 ,ere (ile! b' t$e #%t$orit' ,it$ t$is co%rt. C#: !ismisse! t$e #%t$orit'Hs consoli!ate! &etitions t$e Co%rt o( #&&eals $ol!ing t$at: ;#< LLD# is not among t$ose .%asiD9%!icial agencies o( government ,$ose !ecision or or!er are a&&ealable onl' to t$e Co%rt o( #&&ealsA ;B< t$e LLD# c$arter !oes vest LLD# ,it$ .%asiD9%!icial (%nctions inso(ar as (is$&ens are concerne!A ;C< t$e &rovisions o( t$e LLD# c$arter inso(ar as (is$ing &rivileges in Lag%na !e Ba' are concerne! $a! been re&eale! b' t$e LGC o( 1881A ;D< in vie, o( t$e a(oresai! re&eal t$e &o,er to grant &ermits !evolve! to an! is no, veste! ,it$ t$eir res&ective local government %nits concerne!. *ss%e: 6$ic$ agenc' o( t$e Government S t$e Lag%na La+e Develo&ment #%t$orit' or t$e to,ns an! m%nici&alities com&rising t$e region S s$o%l! e4ercise 9%ris!iction over t$e Lag%na La+e an! its environs inso(ar as t$e iss%ance o( &ermits (or (is$er' &rivileges is concerne!T )ection 0 ;+< o( t$e c$arter o( t$e Lag%na La+e Develo&ment #%t$orit' -e&%blic #ct No. 08C5 t$e &rovisions o( =resi!ential Decree No. 811 an! )ection / o( 34ec%tive Or!er No. 8/7 cite! above s&eci(icall' &rovi!e t$at t$e Lag%na La+e Develo&ment #%t$orit' s$all $ave e4cl%sive 9%ris!iction to iss%e &ermits (or t$e %se o( all s%r(ace ,ater (or an' &ro9ects or activities in or a((ecting t$e sai! region incl%!ing navigation constr%ction an! o&eration o( (is$&ens (is$ enclos%res (is$ corrals an! t$e li+e. On t$e ot$er $an! -e&%blic #ct No. 71G5 t$e LGC o( 1881 $as grante! to t$e m%nici&alities t$e e4cl%sive a%t$orit' to grant (is$er' &rivileges in m%nici&al ,aters. 2$e )angg%niang Ba'an ma' grant (is$er' &rivileges to erect (is$ corrals o'ster m%ssels or ot$er a.%atic be!s or bang%s (r' area ,it$in a !e(inite Bone o( t$e m%nici&al ,aters. 6e $ol! t$at t$e &rovisions o( -e&%blic #ct No. 71G5 !o not necessaril' re&eal t$e a(orementione! la,s creating t$e Lag%na La+e Develo&ment #%t$orit' an! granting t$e latter ,ater rig$ts a%t$orit' over Lag%na !e Ba' an! t$e la+e region. 2$e LGC o( 1881 !oes not contain an' e4&ress &rovision ,$ic$ categoricall' e4&ressl' re&eal t$e c$arter o( t$e
/81

#%t$orit'. *t $as to be conce!e! t$at t$ere ,as no intent on t$e &art o( t$e legislat%re to re&eal -e&%blic #ct No. 08C5 an! its amen!ments. 2$e re&eal o( la,s s$o%l! be ma!e clear an! e4&resse!. *t $as to be conce!e! t$at t$e c$arter o( t$e Lag%na La+e Develo&ment #%t$orit' constit%tes a s&ecial la,. -e&%blic #ct No. 71G5 t$e LGC o( 1881 is a general la,. *t is basic in stat%tor' constr%ction t$at t$e enactment o( a later legislation ,$ic$ is a general la, cannot be constr%e! to $ave re&eale! a s&ecial la,. *t is a ,ellDsettle! r%le in t$is 9%ris!iction t$at "a s&ecial stat%te &rovi!e! (or a &artic%lar case or class o( cases is not re&eale! b' a s%bse.%ent stat%te general in its terms &rovisions an! a&&lication %nless t$e intent to re&eal or alter is mani(est alt$o%g$ t$e terms o( t$e general la, are broa! eno%g$ to incl%!e t$e cases embrace! in t$e s&ecial la,." 6$ere t$ere is a con(lict bet,een a general la, an! a s&ecial stat%te t$e s&ecial stat%te s$o%l! &revail since it evinces t$e legislative intent more clearl' t$an t$e general stat%te. 2$e s&ecial la, is to be ta+en as an e4ce&tion to t$e general la, in t$e absence o( s&ecial circ%mstances (orcing a contrar' concl%sion. 2$is is beca%se im&lie! re&eals are not (avore! an! as m%c$ as &ossible e((ect m%st be given to all enactments o( t$e legislat%re. # s&ecial la, cannot be re&eale! amen!e! or altere! b' a s%bse.%ent general la, b' mere im&lication. 2$%s it $as to be concl%!e! t$at t$e c$arter o( t$e #%t$orit' s$o%l! &revail over t$e LGC o( 1881. Consi!ering t$e reasons be$in! t$e establis$ment o( t$e #%t$orit' ,$ic$ are environmental &rotection navigational sa(et' an! s%stainable !evelo&ment t$ere is ever' in!ication t$at t$e legislative intent is (or t$e #%t$orit' to &rocee! ,it$ its mission. 6e are on all (o%rs ,it$ t$e mani(estation o( &etitioner Lag%na La+e Develo&ment #%t$orit' t$at "Lag%na !e Ba' li+e an' ot$er single bo!' o( ,ater $as its o,n %ni.%e nat%ral ecos'stem. 2$e 855 +me la+e s%r(ace ,ater t$e eig$t ;8< ma9or river trib%taries an! several ot$er smaller rivers t$at !rain into t$e la+e t$e / 8/5 +me basin or ,aters$e! transcen!ing t$e bo%n!aries o( Lag%na an! -iBal &rovinces greater &ortion o( Metro Manila &arts o( Cavite Batangas an! W%eBon &rovinces constit%te one integrate! !elicate nat%ral ecos'stem t$at nee!s to be &rotecte! ,it$ %ni(orm set o( &oliciesA i( ,e are to be serio%s in o%r aims o( attaining s%stainable !evelo&ment. 2$is is an e4$a%stible nat%ral reso%rce S a ver' limite! one S ,$ic$ re.%ires 9%!icio%s management an! o&timal %tiliBation to ens%re rene,abilit' an! &reserve its ecological integrit' an! balance." "Managing t$e la+e reso%rces ,o%l! mean t$e im&lementation o( a national &olic' geare! to,ar!s t$e &rotection conservation balance! gro,t$ an! s%stainable !evelo&ment o( t$e region ,it$ !%e regar! to t$e interD generational %se o( its reso%rces b' t$e in$abitants in t$is &art o( t$e eart$. 2$e a%t$ors o( -e&%blic #ct 08C5 $ave (oreseen t$is nee! ,$en t$e' &asse! t$is LLD# la, S t$e s&ecial la, !esigne! to govern t$e management o( o%r Lag%na !e Ba' la+e reso%rces." "Lag%na !e Ba' t$ere(ore cannot be s%b9ecte! to (ragmente! conce&ts o( management &olicies ,$ere la+es$ore local government %nits e4ercise e4cl%sive !ominion over s&eci(ic &ortions o( t$e la+e ,ater. 2$e garbage t$ro,n or se,age !isc$arge! into t$e la+e abstraction o( ,ater t$ere(rom or constr%ction o( (is$&ens b' enclosing its certain area a((ect not onl' t$at s&eci(ic &ortion b%t t$e entire 855 +me o( la+e ,ater. 2$e im&lementation o( a co$esive an! integrate! la+e ,ater reso%rce management &olic' t$ere(ore is necessar' to conserve &rotect an! s%stainabl' !evelo& Lag%na !e Ba'." 2$e &o,er o( t$e local government %nits to iss%e (is$ing &rivileges ,as clearl' grante! (or reven%e &%r&oses. 2$is is evi!ent (rom t$e (act t$at )ection 108 o( t$e Ne, LGC em&o,ering local governments to iss%e (is$ing &ermits is embo!ie! in C$a&ter / Boo+ ** o( -e&%blic #ct No. 71G5 %n!er t$e $ea!ing ")&eci(ic =rovisions On 2$e 2a4ing #n! Ot$er -even%e -aising =o,er O( Local Government @nits." On t$e ot$er $an! t$e &o,er o( t$e #%t$orit' to grant &ermits (or (is$&ens (is$cages an! ot$er a.%aDc%lt%re str%ct%res is (or t$e &%r&ose o( e((ectivel' reg%lating an! monitoring activities in t$e Lag%na !e Ba' region ;)ection / 34ec%tive Or!er No. 8/7< an! (or la+e .%alit' control an! management. G *t !oes &arta+e o( t$e nat%re o( &olice &o,er ,$ic$ is t$e most &ervasive t$e least limitable an! t$e most !eman!ing o( all )tate &o,ers incl%!ing t$e &o,er o( ta4ation. #ccor!ingl' t$e c$arter o( t$e #%t$orit' ,$ic$ embo!ies a vali! e4ercise o( &olice &o,er s$o%l! &revail over t$e LGC o( 1881 on matters a((ecting Lag%na !e Ba'.
/80

2$ere s$o%l! be no .%arrel over &ermit (ees (or (is$&ens (is$cages an! ot$er a.%aDc%lt%re str%ct%res in t$e Lag%na !e Ba' area. )ection 1 o( 34ec%tive Or!er No. 8/7 &rovi!es (or t$e &ro&er s$aring o( (ees collecte!. QQLLD#: reg%lator' an! .%asiD9%!icial bo!' in res&ect to &oll%tion cases ,it$ a%t$orit' to iss%e a "cease an! !esist or!er" an! on matters a((ecting t$e constr%ction o( illegal (is$&ens (is$cages an! ot$er a.%aDc%lt%re str%ct%res in Lag%na !e Ba'. 2$e #%t$orit'Hs &retense $o,ever t$at it is coDe.%al to t$e -egional 2rial Co%rts s%c$ t$at all actions against it ma' onl' be instit%te! be(ore t$e Co%rt o( #&&eals cannot be s%staine!. On actions necessitating t$e resol%tion o( legal .%estions a((ecting t$e &o,ers o( t$e #%t$orit' as &rovi!e! (or in its c$arter t$e -egional 2rial Co%rts $ave 9%ris!iction. )ection 108 o( -e&%blic #ct No. 71G5 ot$er,ise +no,n as t$e LGC o( 1881 $as not re&eale! t$e &rovisions o( t$e c$arter o( t$e Lag%na La+e Develo&ment #%t$orit' -e&%blic #ct No. 08C5 as amen!e!. 2$%s t$e #%t$orit' $as t$e e4cl%sive 9%ris!iction to iss%e &ermits (or t$e en9o'ment o( (is$er' &rivileges in Lag%na !e Ba' to t$e e4cl%sion o( m%nici&alities sit%ate! t$erein an! t$e a%t$orit' to e4ercise s%c$ &o,ers as are b' its c$arter veste! on it. -emoval (rom t$e #%t$orit' o( t$e a(oresai! licensing a%t$orit' ,ill ren!er n%gator' its avo,e! &%r&ose o( &rotecting an! !evelo&ing t$e Lag%na La+e -egion. Ot$er,ise state! t$e abrogation o( t$is &o,er ,o%l! ren!er %seless its reason (or being an! ,ill in e((ect !enigrate i( not abolis$ t$e Lag%na La+e Develo&ment #%t$orit'. 2$is t$e LGC o( 1881 $a! never inten!e! to !o. Mon ano v. (ilvosa Facts: Mosen!e (ile! a com&laint against Mon!ano ma'or o( t$e m%nici&alit' o( Mainit &rovince o( )%rigao ,it$ t$e =resi!ential Com&laints an! #ction Committee acc%sing $im o( ;1< ra&e committe! on $er !a%g$ter Cari!a! Mosen!eA an! ;/< conc%binage (or co$abiting ,it$ $er !a%g$ter in a &lace ot$er t$an t$e con9%gal !,elling. On G Marc$ t$e #ssistant 34ec%tive )ecretar' in!orse! t$e com&laint to t$e res&on!ent &rovincial governor (or imme!iate investigation a&&ro&riate action an! re&ort. On 15 #&ril t$e &etitioner a&&eare! be(ore t$e &rovincial governor in obe!ience to $is s%mmons an! ,as serve! ,it$ a co&' o( t$e com&laint (ile! b' t$e &rovincial governor ,it$ &rovincial boar!. On t$e same !a' t$e &rovincial governor iss%e! #O 8 s%s&en!ing t$e &etitioner (rom o((ice. 2$erea(ter t$e =rovincial Boar! &rocee!e! to $ear t$e c$arges &re(erre! against t$e &etitioner over $is ob9ection. 2$e &etitioner &ra's (or a ,rit o( &ro$ibition ,it$ &reliminar' in9%nction to en9oin t$e res&on!ents (rom (%rt$er &rocee!ing ,it$ t$e $earing o( t$e a!ministrative case against $im an! (or a !eclaration t$at t$e or!er o( s%s&ension iss%e! b' t$e res&on!ent &rovincial governor is illegal an! ,it$o%t legal e((ect. On 0 Ma' 18C0 t$e ,rit o( &reliminar' in9%nction &ra'e! (or ,as iss%e! a(ter (iling an! a&&roval o( a bon! (or =C55. *ss%e: 6ON t$e &rovincial governor ma' iss%e an or!er o( s%s&ension. )ection 15 &aragra&$ 1 #rticle K** o( t$e Constit%tion &rovi!es: "2$e =resi!ent s$all $ave control o( all t$e e4ec%tive !e&artments b%rea%s or o((ices e4ercise general s%&ervision over all local governments as ma' be &rovi!e! b' la, an! ta+e care t$at t$e la,s be (ait$(%ll' e4ec%te!." @n!er t$is constit%tional &rovision t$e =resi!ent $as been investe! ,it$ t$e &o,er o( control o( all t$e e4ec%tive !e&artments b%rea%s or o((ices b%t not o( all local governments over ,$ic$ $e $as been grante! onl' t$e &o,er o( general s%&ervision as ma' be &rovi!e! b' la,. 2$e De&artment $ea! as agent o( t$e =resi!ent $as !irect control an! s%&ervision over all b%rea%s an! o((ices %n!er $is 9%ris!iction as &rovi!e! (or in section 78 ;c< o( t$e -evise! #!ministrative Co!e b%t $e !oes not $ave t$e same control o( local governments as t$at e4ercise! b' $im over b%rea%s an! o((ices %n!er $is 9%ris!iction. Li+e,ise $is a%t$orit' to or!er t$e investigation o( an' act or con!%ct o( an' &erson in t$e service o( an' b%rea% or o((ice %n!er $is !e&artment is con(ine! to b%rea%s or o((ices %n!er $is 9%ris!iction an! !oes not e4ten! to local governments over ,$ic$ as alrea!' state! t$e =resi!ent e4ercises onl' general s%&ervision as ma' be &rovi!e! b' la,. *( t$e &rovisions o( section 78 ;c< o( t$e -evise! #!ministrative Co!e are to be constr%e! as con(erring %&on t$e corres&on!ing !e&artment $ea! !irect control !irection an! s%&ervision over all local governments an! t$at (or t$e reason $e ma' or!er t$e investigation o( an o((icial o( a local government (or mal(easance in o((ice s%c$ inter&retation ,o%l! be contrar' to t$e &rovisions o( &aragra&$ 1 section
/8C

15 #rticle K** o( t$e Constit%tion. *( "general s%&ervision over all local governments" is to be constr%e! as t$e same &o,er grante! to t$e De&artment Hea! in section 78 ;c< o( t$e -evise! #!ministrative Co!e t$en t$ere ,o%l! no longer be a !istinction or !i((erence bet,een t$e &o,er o( control an! t$at o( s%&ervision. *n a!ministrative la, s%&ervision means overseeing or t$e &o,er or a%t$orit' o( an o((icer to see t$at s%bor!inate o((icers &er(orm t$eir !%ties. *( t$e latter (ail or neglect to (%l(ill t$em t$e (ormer ma' ta+e s%c$ action or ste& as &rescribe! b' la, to ma+e t$em &er(orm t$eir !%ties. Control on t$e ot$er $an! means t$e &o,er o( an o((icer to alter or mo!i(' or n%lli(' or set asi!e ,$at a s%bor!inate o((icer $a! !one in t$e &er(ormance o( $is !%ties an! to s%bstit%te t$e 9%!gment o( t$e (ormer (or t$at o( t$e latter. )%c$ is t$e im&ort o( t$e &rovisions o( section 78 ;c< o( t$e -evise! #!ministrative Co!e an! 17 o( #ct No. 0557. 2$e Congress $as e4&ressl' an! s&eci(icall' lo!ge! t$e &rovincial s%&ervision over m%nici&al o((icials in t$e &rovincial governor ,$o is a%t$oriBe! to "receive an! investigate com&laints ma!e %n!er oat$ against m%nici&al o((icers (or neglect o( !%t' o&&ression corr%&tion or ot$er (orm o( mala!ministration o( o((ice an! conviction b' (inal 9%!gment o( an' crime involving moral t%r&it%!e." #n! i( t$e c$arges are serio%s "$e s$all s%bmit ,ritten c$arges to%c$ing t$e matter to t$e &rovincial boar! (%rnis$ing a co&' o( s%c$ c$arges to t$e acc%se! eit$er &ersonall' or b' registere! mail an! $e ma' in s%c$ case s%s&en! t$e o((icer ;not being t$e m%nici&al treas%rer< &en!ing action b' t$e boar! i( in $is o&inion t$e c$arge be one a((ecting t$e o((icial integrit' o( t$e o((icer in .%estion." 1 )ection 8G o( t$e -evise! #!ministrative Co!e a!!s not$ing to t$e &o,er o( s%&ervision to be e4ercise! b' t$e De&artment Hea! over t$e a!ministration o( . . . m%nici&alities . . .. *( it be constr%e! t$at it !oes an! s%c$ a!!itional &o,er is t$e same a%t$orit' as t$at veste! in t$e De&artment Hea! b' section 78 ;c< o( t$e -evise! #!ministrative Co!e t$en s%c$ a!!itional &o,er m%st be !eeme! to $ave been abrogate! b' section 15 ;1< #rticle K** o( t$e Constit%tion. Lacson vs. -o.%e: t$e &o,er o( t$e =resi!ent to remove o((icials (rom o((ice as &rovi!e! (or in section G0 ;b< o( t$e -evise! #!ministrative Co!e m%st be !one "con(ormabl' to la,A" an! onl' (or !islo'alt' to t$e -e&%blic o( t$e =$ili&&ines $e "ma' at an' time remove a &erson (rom an' &osition o( tr%st or a%t$orit' %n!er t$e Government o( t$e ;=$ili&&ine *slan!s< =$ili&&ines." #gain t$is &o,er o( removal m%st be e4ercise! con(ormabl' to la,. *n t$e in!orsement to t$e &rovincial governor t$e #ssistant 34ec%tive )ecretar' re.%este! imme!iate investigation a&&ro&riate action an! re&ort on t$e com&laint in!orse! to $im an! calle! $is attention to section /181 o( t$e -evise! #!ministrative Co!e ,$ic$ &rovi!es (or t$e instit%tion o( 9%!icial &rocee!ings b' t$e &rovincial (iscal %&on !irection o( t$e &rovincial governor. *( t$e in!orsement o( t$e #ssistant 34ec%tive )ecretar' be ta+en as a !esignation o( t$e &rovincial governor to investigate t$e &etitioner t$en $e ,o%l! onl' be acting as agent o( t$e 34ec%tive b%t t$e investigation to be con!%cte! b' $im ,o%l! not be t$at ,$ic$ is &rovi!e! (or in sections /188 /188 an! /185 o( t$e -evise! #!ministrative Co!e. 2$e c$arges &re(erre! against t$e res&on!ent are not mal(easances or an' o( t$ose en%merate! or s&eci(ie! in section /188 o( t$e -evise! #!ministrative Co!e beca%se ra&e an! conc%binage $ave not$ing to !o ,it$ t$e &er(ormance o( $is !%ties as ma'or nor !o t$e' constit%te or involve" neglect o( !%t' o&&ression corr%&tion or an' ot$er (orm o( mala!ministration o( o((ice." 2r%e t$e' ma' involve moral t%r&it%!e b%t be(ore t$e &rovincial governor an! boar! ma' act an! &rocee! in accor!ance ,it$ t$e &rovisions o( t$e -evise! #!ministrative Co!e re(erre! to a conviction b' (inal 9%!gment m%st &rece!e t$e (iling b' t$e &rovincial governor o( c$arges an! trial b' t$e &rovincial boar!. 3ven t$e &rovincial (iscal cannot (ile an in(ormation (or ra&e ,it$o%t a s,orn com&laint o( t$e o((en!e! &art' ,$o is /8 'ears o( age an! t$e crime o( conc%binage cannot be &rosec%te! b%t %&on s,orn com&laint o( t$e o((en!e! s&o%se.0 2$e c$arges &re(erre! against t$e &etitioner m%nici&al ma'or o( Mainit &rovince o( )%rigao not being t$ose or an' o( t$ose s&eci(ie! in section /188 o( t$e -evise! #!ministrative Co!e t$e investigation o( s%c$ c$arges b' t$e &rovincial boar! is %na%t$oriBe! an! illegal. 2$e s%s&ension o( t$e &etitioner as ma'or o( t$e m%nici&alit' o( Mainit is conse.%entl' %nla,(%l an! ,it$o%t a%t$orit' o( la,.
/8G

9ebron v. Re#es Facts: *n t$e general elections $el! in 18C1 &etitioner Bernar!o Hebron a member o( t$e Liberal =art' an! res&on!ent 3%lalio D. -e'es o( t$e Nacionalista =art' ,ere electe! ma'or an! viceD ma'or res&ectivel' o( sai! m%nici&alit' (or a term o( (o%r ;0< 'ears beginning (rom 7an%ar' 1 18C/ on ,$ic$ !ate t$e' &res%mabl' ass%me! t$e a(orementione! o((ices. =etitioner !isc$arge! t$e !%ties an! (%nctions o( ma'or contin%o%sl' %ntil Ma' // or /0 18C0 ,$en $e receive! comm%nication t$at t$e =resi!ent $as !eci!e! to ass%me !irectl' t$e investigation to t$e a!ministrative c$arges against $im (or allege! o&&ression grave ab%se o( a%t$orit' an! serio%s miscon!%ct in o((ice an! $as !esignate! t$e =rovincial Fiscal o( t$at &rovince as )&ecial *nvestigator o( t$e sai! c$arges. Hebron ,as also s%s&en!e! (rom o((ice. 2$e KiceDMa'or ,as !irecte! to ass%me t$e o((ice o( #cting Ma'or. 2$ere%&on -e'es acte! as ma'or o( Carmona an! t$e =rovincial Fiscal o( Cavite investigate! t$e c$arges. #(ter $ol!ing $earings in connection ,it$ sai! c$arges t$e &rovincial (iscal s%bmitte! $is re&ort t$ereon on 7%l' 1C 18C0. )ince t$en t$e matter $as been &en!ing in t$e O((ice o( t$e =resi!ent (or !ecision. *nasm%c$ as t$e same !i! not a&&ear to be (ort$coming an! t$e term o( &etitioner ,$o remaine! s%s&en!e! ,as abo%t to e4&ire on Ma' 11 18CC $e instit%te! t$e &resent action (or .%o ,arranto %&on t$e gro%n! t$at res&on!ent ,as illegall' $ol!ing t$e O((ice o( Ma'or o( Carmona an! $a! %nla,(%ll' re(%se! an! still re(%se! to s%rren!er sai! o((ice to &etitioner ,$o claime! to be entitle! t$ereto. -es&on!ent an! t$e )olicitor General ,$o ,as allo,e! to intervene (ile! t$eir res&ective ans,ers a!mitting s%bstantiall' t$e main allegations o( (act in &etitionerHs com&laint b%t !en'ing t$e allege! illegalit' o( &etitionerHs s%s&ension an! alleging t$at res&on!ent ,as $ol!ing t$e o((ice o( t$e ma'or in com&liance ,it$ a vali! an! la,(%l or!er o( t$e =resi!ent. O,ing to t$e nat%re an! im&ortance o( t$e iss%e t$%s raise! Dean Kicente G. )inco o( t$e College o( La, @niversit' o( t$e =$ili&&ines an! =ro(essor 3nri.%e M. Fernan!o ,ere allo,e! to intervene as amici c%riae. #t t$e $earing o( t$is case t$e &arties as ,ell as t$e )olicitor General an! sai! amici c%riae a&&eare! an! arg%e! e4tensivel'. )%bse.%entl' t$e' (ile! t$eir res&ective memoran!a an! on )e&tember / 18CC t$e case became s%bmitte! (or !ecision. 2$e case co%l! not be !is&ose! o( $o,ever be(ore t$e close o( sai! 'ear beca%se t$e members o( t$is Co%rt co%l! not ,it$in t$e %ne4&ire! &ortion t$ereo( reac$ an agreement on t$e !ecision t$ereon. #lt$o%g$ t$e term o( o((ice o( &etitioner $erein e4&ire! on December 11 18CC $is claim to t$e O((ice o( Ma'or o( Carmona Cavite $as not t$ereb' become entirel' moot as regar!s s%c$ rig$ts as ma' $ave accr%e! to $im &rior t$ereto. For t$is reason an! also beca%se t$e .%estion o( la, &ose! in t$e &lea!ings concerns a vital (eat%re o( t$e relations bet,een t$e national government an! t$e local governments an! t$e Co%rt $as been le! to believe t$at t$e &arties s&eciall' t$e e4ec%tive !e&artment are earnestl' intereste! in a clearDc%t settlement o( sai! .%estion (or t$e same ,ill ot$er,ise contin%e to be a constant so%rce o( (riction !is&%tes an! litigations to t$e !etriment o( t$e smoot$ o&eration o( t$e Government an! o( t$e ,el(are o( t$e &eo&le t$e members o( t$is Co%rt !eem it necessar' to e4&ress t$eir vie, t$ereon a(ter ta+ing am&le time to consi!er an! !isc%ss (%ll ever' conceivable as&ect t$ereo(. *ss%e: 6ON a m%nici&al ma'or not c$arge! ,it$ !islo'alt' to t$e -e&%blic o( t$e =$ili&&ines ma' be remove! or s%s&en!e! !irectl' b' t$e =resi!ent o( t$e =$ili&&ines regar!less o( t$e &roce!%re set (ort$ in sections /188 to /181 o( t$e -evise! #!ministrative Co!e. %n!er t$e &resent la, t$e &roce!%re &rescribe! in sections /188 to /181 o( t$e -evise! #!ministrative Co!e (or t$e s%s&ension an! removal o( t$e m%nici&al o((icials t$erein re(erre! to is man!ator'A t$at in t$e absence o( a clear an! e4&licit &rovision to t$e contrar' relative &artic%larl' to m%nici&al cor&orations S an! none $as been cite! to %s S sai! &roce!%re is e4cl%siveA t$at t$e e4ec%tive !e&artment o( t$e national government in t$e e4ercise o( its general s%&ervision over local governments ma' con!%ct investigations ,it$ a vie, to !etermining ,$et$er m%nici&al o((icials are g%ilt' o( acts or omissions ,arranting t$e a!ministrative action re(erre! to in sai! sections as a means onl' to ascertain ,$et$er t$e &rovincial governor an! t$e &rovincial boar! s$o%l! ta+e s%c$ actionA t$at t$e 34ec%tive ma' ta+e a&&ro&riate meas%res to com&el t$e &rovincial governor an! t$e &rovincial boar! to ta+e sai! action i( t$e same is ,arrante! an! t$e' (aile! to !o so t$e &rovincial governor an! t$e &rovincial boar! ma' not be !e&rive! b' t$e 34ec%tive o( t$e &o,er to e4ercise t$e a%t$orit' con(erre! %&on t$em in sections /188 to /185 o( t$e -evise! #!ministrative Co!eA t$at s%c$ ,o%l! be t$e
/87

e((ect o( t$e ass%m&tion o( t$ose &o,ers b' t$e 34ec%tiveA t$at sai! ass%m&tion o( &o,ers ,o%l! (%rt$er violate section /181 o( t$e same co!e (or t$e a%t$orit' t$erein veste! in t$e 34ec%tive is merel' a&&ellate in c$aracterA t$at sai! ass%m&tion o( &o,ers in t$e case at bar even e4cee!e! t$ose o( t$e =rovincial Governor an! =rovincial Boar! in ,$om original 9%ris!iction is veste! b' sai! sections /188 to /185 (or &%rs%ant t$ereto "t$e &reventive s%s&ension o( a m%nici&al o((icer s$all not be (or more t$an 15 !a's" at t$e e4&iration o( ,$ic$ $e s$all be reinstate! %nless t$e !ela' in t$e !ecision o( t$e case is !%e to $is (a%lt neglect or re.%est or %nless $e s$all $ave mean,$ile been convicte! ,$ereas &etitioner $erein ,as s%s&en!e! "%ntil t$e (inal !etermination o( t$e &rocee!ings" against $im regar!less o( t$e !%ration t$ereo( an! ca%se o( t$e !ela' in its !is&ositionA11 an! t$at so m%c$ o( t$e r%le lai! !o,n in Killena vs. )ecretar' o( t$e *nterior ;G7 =$il. 0C1< Killena vs. -o.%e ;81 =$il. 1G1< as ma' be inconsistent ,it$ t$e (oregoing vie,s s$o%l! be !eeme! an! are $ereb' reverse! or mo!i(ie! accor!ingl'. t$e lo,er co%rt !ecline! to iss%e t$e ,rit an! instea! set t$e case (or $earing on t$e merits on )e&tember /8 18CG. #t t$e $earing bot$ &arties agree! to a!mit all t$e (acts set (ort$ in t$e &lea!ings an! s%bmitte! t$e case (or !ecision. #n! on October / 18CG t$e lo,er co%rt ren!ere! !ecision !ismissing t$e &etition. His motion (or reconsi!eration $aving been !enie! &etitioner too+ t$e &resent a&&eal. *ss%es: 1. 6ON t$e =resi!ent o( t$e =$ili&&ines $as t$e &o,er an! a%t$orit' %n!er o%r Constit%tion an! t$e la,s at &resent in (orce in t$is 9%ris!iction to investigate t$e ma'or o( a cit' an! i( (o%n! g%ilt' to ta+e !isci&linar' action against $im as t$e evi!ence an! la, ma' ,arrant. *loilo c$arter !oes not contain an' &rovision as regar!s t$e &roce!%re b' ,$ic$ $e ma' be remove!. Nevert$eless as t$is Co%rt $as once sai! "t$e rig$ts !%ties an! &rivileges o( m%nici&al o((icers ;incl%!ing cit' o((icials< !o not $ave to be embo!ie! in t$e c$arter b%t ma' be reg%late! b' &rovisions o( general a&&lication s&eciall' i( t$ese are incor&orate! in t$e same co!e o( ,$ic$ t$e cit' organic la, (orms a &art". 2$e co!e $erein re(erre! to is t$e -evise! #!ministrative Co!e. 2$e c$arter !oes not sa' t$at $e s$all $ol! o((ice at t$e &leas%re o( t$e =resi!ent %nli+e similar &rovisions a&&earing in ot$er cit' c$arters. 2$e i!ea is to give t$e ma'or a !e(inite ten%re o( o((ice not !e&en!ent %&on t$e &leas%re o( t$e =resi!ent. *( t$is ,ere t$e case $e co%l! be se&arate! (rom t$e service regar!less o( t$e ca%se or motive. B%t ,$en $e ,as given a !e(inite ten%re t$e im&lication is t$at $e can onl' be remove! (or ca%se. #n in(erential a%t$orit' to remove at &leas%re can not be !e!%ce! since t$e e4istence o( a !e(ine! term i&so (acto negatives s%c$ an in(erence an! im&lies a contrar' &res%m&tion i.e. t$at t$e inc%mbent s$all $ol! o((ice to t$e en! o( $is term s%b9ect to removal (or ca%se.H G0;b< 2o remove o((icials (rom o((ice con(ormabl' to la, an! to !eclare vacant t$e o((ices $el! b' s%c$ remove! o((icials. For !islo'alt' to t$e ;@nite! )tates< t$e -e&%blic o( t$e =$ili&&ines t$e ;GovernorDGeneral< =resi!ent o( t$e =$ili&&ines ma' at an' time remove a &erson (rom an' &osition o( tr%st or a%t$orit' %n!er t$e Government o( t$e ;=$ili&&ine *slan!s< =$ili&&ines. ;c< 2o or!er ,$en in $is o&inion t$e goo! o( t$e &%blic services re.%ires an
Ganzon v. .a#anan Facts: On #%g%st /C 18CG -osales lo!ge! a veri(ie! com&laint against GanBon (or ta+ing a!vantage o( $is &%blic &osition. On )e&tember 11 18CG t$e 34ec%tive )ecretar' b' a%t$orit' o( t$e =resi!ent !esignate! Ma'anan to con!%ct t$e investigation o( sai! com&laint &%rs%ant to t$e &rovisions o( )ection G0;c< o( t$e -#C granting Ma'anan all t$e &o,ers given to an investigating o((icer b' )ections 71 an! C85 o( t$e same Co!e. On )e&tember 18 18CG res&on!ent serve! a co&' o( t$e com&laint on &etitioner an! set t$e investigation o( t$e c$arges on )e&tember /5 18CG. =etitioner $aving (ile! a motion (or &ost&onement res&on!ent !e(initel' set t$e investigation (or )e&tember /C an! /G 18CG. On )e&tember /0 18CG GanBon instit%te! in t$e CF* an action (or &ro$ibition ,it$ &reliminar' in9%nction .%estioning t$e a%t$orit' o( t$e =resi!ent to or!er $is investigation an! &ra'ing t$at res&on!ent be en9oine! to s%s&en! an! !esist (rom &rocee!ing ,it$ t$e investigation an! t$at &en!ing !ecision o( t$e case on t$e merits a &reliminar' in9%nction be iss%e! against res&on!ent. On )e&tember /G 18CG
/88

investigation o( an' action or t$e con!%ct o( an' &erson in t$e Government service an! in connection t$ere,it$ to !esignate t$e o((icial committee or &erson b' ,$om s%c$ investigation s$all be con!%cte!. )3C. 15. ;1< 2$e =resi!ent s$all $ave control o( an t$e e4ec%tive !e&artments b%rea%s or o((ices e4ercise general s%&ervision over all local governments as ma' be &rovi!e! b' la, an! ta+e care t$at t$e la,s be (ait$(%ll' e4ec%te!. *t ma' clearl' be in(erre! (rom t$e above t$at t$e =resi!ent ma' remove an' o((icial in t$e government service "con(ormabl' to la," an! to !eclare vacant t$e o((ice $el! b' t$e remove! o((icial. #n! to t$is en! t$e =resi!ent ma' or!er "an investigation o( an' action or t$e con!%ct o( an' &erson in t$e Government service an! in connection t$ere,it$ to !esignate t$e o((icial committee or &erson b' ,$om s%c$ investigation s$all be con!%cte!." Note t$at t$e &rovision re(ers to an' o((icial in t$e government service ,$ic$ m%st necessaril' incl%!e t$e ma'or o( a c$artere! cit'. *t cannot t$ere(ore be !is&%te! t$at in t$e &artic%lar case %n!er consi!eration t$e =resi!ent is veste! ,it$ t$e a%t$orit' to or!er t$e investigation o( &etitioner ,$en in $is o&inion t$e goo! o( t$e &%blic service so re.%ires an! s%c$ being t$e case &etitioner cannot no, conten! t$at t$e !esignation o( res&on!ent as t$e o((icial to investigate $im in connection ,it$ t$e c$arges lo!ge! against $im b' -osales $as been !one ,it$o%t t$e a%t$orit' o( la,. 2$is o( co%rse is %&on t$e &remise t$at t$e c$arges involve! in t$e investigation re(er to t$ose (or ,$ic$ &etitioner ma' be s%s&en!e! or remove! %n!er t$e la, a .%estion ,$ic$ ,e ,ill ta+e %& later in t$is !ecision. Mon!ano v. )ilvosa on )%&ervision v. Control. From !istinction it cannot be reasonabl' in(erre! t$at t$e &o,er o( s%&ervision o( t$e =resi!ent over local government o((icials !oes not incl%!e t$e &o,er o( investigation ,$en in $is o&inion t$e goo! o( t$e &%blic service so re.%ires as &ost%late! in )ection G0;c< o( t$e -evise! #!ministrative Co!e. Hebron v. -e'es: t$e &roce!%re &rescribe! in sections /188 to /181 o( t$e -evise! #!ministrative Co!e (or t$e s%s&ension an! removal o( m%nici&al o((icials t$erein re(erre! to is man!ator'A t$at in t$e absence o( a clear an! e4&licit &rovision to t$e contrar' relative &artic%larl' to m%nici&al cor&orations S an! none $as been cite! to %s S sai! &roce!%re is e4cl%siveA t$at t$e e4ec%tive !e&artment o( t$e national government in t$e e4ercise o( its general s%&ervision over local government ma' con!%ct investigations ,it$ a vie, to !etermining ,$et$er m%nici&al o((icials are g%ilt' o( acts or omissions ,arranting t$e a!ministrative action re(erre! to in sai! sections as a means onl' to ascertain ,$et$er t$e &rovincial governor an! t$e &rovincial boar! s$o%l! ta+e s%c$ actionA t$at t$e 34ec%tive ma' ta+e a&&ro&riate meas%res to com&el t$e &rovincial governor an! t$e &rovincial boar! to ta+e sai! action i( t$e same is ,arrante! an! t$e' (aile! to !o soA t$at t$e &rovincial governor an! t$e &rovincial boar! ma' not be !e&rive! b' t$e 34ec%tive o( t$e &o,er to e4ercise t$e a%t$orit' con(erre! %&on t$em in sections /188 to /185 o( t$e -evise! #!ministrative Co!eA t$at s%c$ ,o%l! be t$e e((ect o( t$e ass%m&tion t$ose &o,ers b' t$e 34ec%tiveA t$at sai! ass%m&tion o( &o,ers ,o%l! (%rt$er violate section /181 o( t$e same Co!e (or t$e a%t$orit' t$erein veste! in t$e 34ec%tive is merel' a&&ellate in c$aracterA t$at sai! ass%m&tion o( &o,ers in t$e case at bar even e4cee!e! t$ose o( t$e =rovincial Governor an! =rovincial Boar! in ,$om original 9%ris!iction is veste! b' sai! sections /188 to /185 (or &%rs%ant t$ereto "t$e &reventive s%s&ension o( a m%nici&al o((icer s$all not be (or more t$an t$irt' ;15< !a's " at t$e e4&iration o( ,$ic$ $e s$all be reinstate! %nless t$e !ela' in t$e !ecision o( t$e case is !%e to $is (a%lt neglect or re.%est or %nless $e s$all $ave mean,$ile been convicte! ,$ereas &etitioner $erein ,as s%s&en!e! "%ntil t$e (inal !etermination o( t$e &rocee!ings" against $im regar!less o( t$e o( t$e !%ration t$ereo( an! t$e ca%se o( t$e !ela' in its !is&osition an! t$at so m%c$ o( t$e r%le lai! !o,n in Killena vs. )ecretar' o( t$e *nterior an! Killena vs. -o.%e as ma' be inconsistent ,it$ t$e (oregoing vie,s s$o%l! be !eeme! an! are $ereb' reverse! or mo!i(ie! accor!ingl'. /. For ,$at ca%se or ca%ses ma' t$e =resi!ent or!er t$e investigation o( &etitioner "con(ormabl' to la,T Lacson vs. -o.%e: Consi!ering t$at t$e &osition o( ma'or o( a c$artere! cit' ma' be (airl' com&are! in categor' an! stat%re ,it$ t$at o( a &rovincial governor ,e are o( t$e o&inion t$at t$e (ormer b' analog' ma' also be amenable
/88

to removal an! s%s&ension (or t$e same ca%ses as t$e latter ,$ic$ ca%ses %n!er )ection /578 o( t$e -evise! #!ministrative Co!e are: !islo'alt' !is$onest' o&&ression an! miscon!%ct in o((ice. #n! consi!ering t$e allegations in t$e com&laint to t$e e((ect t$at &etitioner too+ a!vantage o( $is &%blic &osition as ma'or o( *loilo Cit' in committing t$e acts o( violence an! intimi!ation %&on res&on!ent in or!er to sto& t$e ra!io &rogram $e ,as t$en con!%cting in $is station t$%s s%&&ressing an! c%rtailing $is rig$t to (ree s&eec$ ,e are o( t$e o&inion t$at sai! acts constit%te miscon!%ct in o((ice (or ,$ic$ $e ma' be or!ere! investigate! b' t$e =resi!ent ,it$in t$e meaning o( t$e la,. 2$ere is t$ere(ore no &la%sible reason to !ist%rb t$e !ecision ren!ere! b' t$e lo,er co%rt ,$ic$ ,e (in! to be in accor!ance ,it$ la,. Ganzon v. CA /supra- see p. 6C41 'aule v. (antos Facts: On 7%ne 18 1888 t$e Fe!eration o( #ssociations o( Baranga' Co%ncils ;F#BC< o( Catan!%anes com&ose! o( eleven ;11< members in t$eir ca&acities as =resi!ents o( t$e #ssociation o( Baranga' Co%ncils in t$eir res&ective m%nici&alities convene! in Kirac Catan!%anes ,it$ si4 members in atten!ance (or t$e &%r&ose o( $ol!ing t$e election o( its o((icers. =resent ,ere &etitioner -%&erto 2a%le o( )an Mig%el #llan #.%ino o( Kiga Kicente #vila o( Kirac Fi!el 7acob o( =anganiban Leo )ales o( Caramoran an! Man%el 2orres o( Baras. 2$e Boar! o( 3lection )%&ervisors?Cons%ltants ,as com&ose! o( =rovincial Government O&eration O((icer ;=GOO< #lberto =. Molina 7r. as C$airman ,it$ =rovincial 2reas%rer L%is #. Manla&aB 7r. an! =rovincial 3lection )%&ervisor #rnol! )o.%erata as members. 6$en t$e gro%& !eci!e! to $ol! t$e election !es&ite t$e absence o( (ive ;C< o( its members t$e =rovincial 2reas%rer an! t$e =rovincial 3lection )%&ervisor ,al+e! o%t. 2$e election nevert$eless &rocee!e!. On 7%ne 18 1888 res&on!ent Lean!ro *. Kerceles Governor o( Catan!%anes sent a letter to res&on!ent L%is 2. )antos t$e )ecretar' o( Local Government &rotesting t$e election o( t$e o((icers o( t$e F#BC an! see+ing its n%lli(ication in vie, o( several (lagrant irreg%larities in t$e manner it ,as con!%cte!. *n com&liance ,it$ t$e or!er o( res&on!ent )ecretar' &etitioner -%&erto 2a%le as =resi!ent o( t$e F#BC (ile! $is comment on t$e letterD&rotest o( res&on!ent Governor !en'ing t$e allege! irreg%larities an! !eno%ncing sai! res&on!ent Governor (or me!!ling or intervening in t$e election o( F#BC o((icers ,$ic$ is a &%rel' nonD&artisan a((air an! at t$e same time re.%esting (or $is a&&ointment as a member o( t$e )angg%niang =anlala,igan o( t$e &rovince being t$e !%l' electe! =resi!ent o( t$e F#BC in Catan!%anes. On #%g%st 0 1888 res&on!ent )ecretar' iss%e! a resol%tion n%lli('ing t$e election o( t$e o((icers o( t$e F#BC in Catan!%anes $el! on 7%ne 18 1888 an! or!ering a ne, one to be con!%cte! as earl' as &ossible to be &resi!e! b' t$e -egional Director o( -egion K o( t$e De&artment o( Local Government. =etitioner (ile! a motion (or reconsi!eration o( t$e resol%tion o( #%g%st 0 1888 b%t it ,as !enie! b' res&on!ent )ecretar' in $is resol%tion o( )e&tember C 1888. *n t$e &etition (or certiorari be(ore @s &etitioner see+s t$e reversal o( t$e resol%tions o( res&on!ent )ecretar' !ate! #%g%st 0 1888 an! )e&tember C 1888 (or being n%ll an! voi!. *ss%es: 1. 6ON t$e )ecretar' $as 9%ris!iction to entertain an election &rotest involving t$e election o( t$e o((icers o( t$e Fe!eration o( #ssociation o( Baranga' Co%ncils. *t is a ,ellDsettle! &rinci&le o( a!ministrative la, t$at %nless e4&ressl' em&o,ere! a!ministrative agencies are bere(t o( .%asiD 9%!icial &o,ers. 18 2$e 9%ris!iction o( a!ministrative a%t$orities is !e&en!ent entirel' %&on t$e &rovisions o( t$e stat%tes re&osing &o,er in t$emA t$e' cannot con(er it %&on t$emselves. )%c$ 9%ris!iction is essential to give vali!it' to t$eir !eterminations. 2$ere is neit$er a stat%tor' nor constit%tional &rovision e4&ressl' or even b' necessar' im&lication con(erring %&on t$e )ecretar' o( Local Government t$e &o,er to ass%me 9%ris!iction over an election &rotect involving o((icers o( t$e +ati&%nan ng mga baranga'. #n %n!erstan!ing o( t$e e4tent o( a%t$orit' o( t$e )ecretar' over local governments is t$ere(ore necessar' i( 6e are to resolve t$e iss%e at $an!. =resi!ential &o,er over local governments is limite! b' t$e Constit%tion to t$e e4ercise o( general s%&ervision "to ens%re t$at local a((airs are a!ministere! accor!ing to la,." 2$e general s%&ervision is e4ercise! b' t$e =resi!ent t$ro%g$ t$e )ecretar' o( Local Government. *n a!ministrative la, s%&ervision means overseeing or t$e &o,er or a%t$orit' o( an o((icer to see t$at t$e s%bor!inate
/85

o((icers &er(orm t$eir !%ties. *( t$e latter (ails or neglects to (%l(ill t$em t$e (ormer ma' ta+e s%c$ action or ste& as &rescribe! b' la, to ma+e t$em &er(orm t$eir !%ties. Control on t$e ot$er $an! means t$e &o,er o( an o((icer to alter or mo!i(' or n%lli(' or set asi!e ,$at a s%bor!inate o((icer $a! !one in t$e &er(ormance o( $is !%ties an! to s%bstit%te t$e 9%!gment o( t$e (ormer (or t$at o( t$e latter. 2$e (%n!amental la, &ermits t$e C$ie( 34ec%tive to ,iel! no more a%t$orit' t$an t$at o( c$ec+ing ,$et$er sai! local government or t$e o((icers t$ereo( &er(orm t$eir !%ties as &rovi!e! b' stat%tor' enactments. Hence t$e =resi!ent cannot inter(ere ,it$ local governments so long as t$e same or its o((icers act ,it$in t$e sco&e o( t$eir a%t$orit'. )%&ervisor' &o,er ,$en contraste! ,it$ control is t$e &o,er o( mere oversig$t over an in(erior bo!'A it !oes not incl%!e an' restraining a%t$orit' over s%c$ bo!'. Constr%ing t$e constit%tional limitation on t$e &o,er o( general s%&ervision o( t$e =resi!ent over local governments 6e $ol! t$at res&on!ent )ecretar' $as no a%t$orit' to &ass %&on t$e vali!it' or reg%larit' o( t$e election o( t$e o((icers o( t$e +ati&%nan. 2o allo, res&on!ent )ecretar' to !o so ,ill give $im more &o,er t$an t$e la, or t$e Constit%tion grants. *t ,ill in e((ect give $im control over local government o((icials (or it ,ill &ermit $im to inter(ere in a &%rel' !emocratic an! nonD&artisan activit' aime! at strengt$ening t$e baranga' as t$e basic com&onent o( local governments so t$at t$e %ltimate goal o( (%llest a%tonom' ma' be ac$ieve!. *n (act $is or!er t$at t$e ne, elections to be con!%cte! be &resi!e! b' t$e -egional Director is a clear an! !irect inter(erence b' t$e De&artment ,it$ t$e &olitical a((airs o( t$e baranga's ,$ic$ is not &ermitte! b' t$e limitation o( &resi!ential &o,er to general s%&ervision over local governments. *n!ee! it is t$e &olic' o( t$e state to ens%re t$e a%tonom' o( local governments. 2$is state &olic' is ec$oe! in t$e Local Government Co!e ,$erein it is !eclare! t$at "t$e )tate s$all g%arantee an! &romote t$e a%tonom' o( local government %nits to ens%re t$eir (%llest !evelo&ment as sel(Dreliant comm%nities an! ma+e t$em more e((ective &artners in t$e &%rs%it o( national !evelo&ment an! social &rogress." 2o !en' t$e )ecretar' o( Local Government t$e &o,er to revie, t$e reg%larit' o( t$e elections o( o((icers o( t$e +ati&%nan ,o%l! be to en$ance t$e avo,e! state &olic' o( &romoting t$e a%tonom' o( local governments. Moreover alt$o%g$ t$e De&artment is given t$e &o,er to &rescribe r%les reg%lations an! ot$er iss%ances t$e #!ministrative Co!e limits its a%t$orit' to merel' "monitoring com&liance" b' local government %nits o( s%c$ iss%ances. 2o monitor means "to ,atc$ observe or c$ec+. 2$is is com&atible ,it$ t$e &o,er o( s%&ervision o( t$e )ecretar' over local governments ,$ic$ as earlier !isc%sse! is limite! to c$ec+ing ,$et$er t$e local government %nit concerne! or t$e o((icers t$ereo( &er(orm t$eir !%ties as &rovi!e! b' stat%tor' enactments. 3ven t$e Local Government Co!e ,$ic$ grants t$e )ecretar' &o,er to iss%e im&lementing circ%lars r%les an! reg%lations is silent as to $o, t$ese iss%ances s$o%l! be en(orce!. )ince t$e res&on!ent )ecretar' e4ercises onl' s%&ervision an! not control over local governments it is tr%l' !o%bt(%l i( $e co%l! en(orce com&liance ,it$ t$e DLG Circ%lar. #n' !o%bt t$ere(ore as to t$e &o,er o( t$e )ecretar' to inter(ere ,it$ local a((airs s$o%l! be resolve! in (avor o( t$e greater a%tonom' o( t$e local government. 2$%s t$e Co%rt $ol!s t$at in ass%ming 9%ris!iction over t$e election &rotest (ile! b' res&on!ent Governor an! !eclaring t$e election o( t$e o((icers o( t$e F#BC on 7%ne 18 1888 as n%ll an! voi! t$e res&on!ent )ecretar' acte! in e4cess o( $is 9%ris!iction. 2$e res&on!ent )ecretar' not $aving t$e 9%ris!iction to $ear an election &rotest involving o((icers o( t$e F#BC t$e reco%rse o( t$e &arties is to t$e or!inar' co%rts. 2$e -egional 2rial Co%rts $ave t$e e4cl%sive original 9%ris!iction to $ear t$e &rotest. 11 2$e &rovision in DLG Circ%lar No. 88D1C amen!ing DLG Circ%lar No. 88D58 ,$ic$ states t$at ",$enever t$e g%i!elines are not s%bstantiall' com&lie! ,it$ t$e election s$all be !eclare! n%ll an! voi! b' t$e De&artment o( Local Government an! an election s$all con!%ct an! being invo+e! b' t$e )olicitor General cannot be a&&lie!. DLG Circ%lar No. 88D1C ,as iss%e! on 7%l' 1 1888 a(ter t$e 7%ne 18 1888 elections o( t$e F#BC o((icers an! it is t$e r%le in stat%tor' constr%ction t$at la,s incl%!ing circ%lars an! reg%lations 10 cannot be a&&lie! retros&ectivel'. Moreover s%c$ &rovision is n%ll an! voi! (or $aving been iss%e! in e4cess o( t$e res&on!ent )ecretar'Hs 9%ris!iction inasm%c$
/81

as an a!ministrative a%t$orit' cannot con(er 9%ris!iction %&on itsel(. 6ON t$e Governor $as t$e legal &ersonalit' to (ile an election &rotest 2$e Co%rt (in!s t$at res&on!ent Governor $as t$e &ersonalit' to (ile t$e &rotest. @n!er )ection /5C o( t$e Local Government Co!e t$e members$i& o( t$e sangg%niang &anlala,igan consists o( t$e governor t$e viceDgovernor elective members o( t$e sai! sangg%nian an! t$e &resi!ents o( t$e +ati&%nang &anlala,igan an! t$e +abataang baranga' &rovincial (e!eration. 2$e governor acts as t$e &resi!ing o((icer o( t$e sangg%niang &anlala,igan. #s &resi!ing o((icer o( t$e sagg%niang &anlala,igan t$e res&on!ent governor $as an interest in t$e election o( t$e o((icers o( t$e F#BC since its electe! &resi!ent becomes a member o( t$e assembl'. *( t$e &resi!ent o( t$e F#BC ass%mes $is &resi!enc' %n!er .%estionable circ%mstances an! is allo,e! to sit in t$e sangg%niang &anlala,igan t$e o((icial actions o( t$e sangg%nian ma' be v%lnerable to attac+s as to t$eir vali!it' or legalit'. Hence res&on!ent governor is a &ro&er &art' to .%estion t$e reg%larit' o( t$e elections o( t$e o((icers o( t$e F#BC. #ss%ming t$at t$e res&on!ent )ecretar' $as 9%ris!iction over t$e election &rotest 6ON $e committe! grave ab%se o( !iscretion amo%nting to lac+ o( 9%ris!iction in n%lli('ing t$e election #s to t$e t$ir! iss%e raise! b' &etitioner t$e Co%rt $as alrea!' r%le! t$at t$e res&on!ent )ecretar' $as no 9%ris!iction to $ear t$e &rotest an! n%lli(' t$e elections. Nevert$eless t$e Co%rt $ol!s t$at t$e iss%e o( t$e vali!it' o( t$e elections s$o%l! no, be resolve! in or!er to &revent an' %nnecessar' !ela' t$at ma' res%lt (rom t$e commencement o( an a&&ro&riate action b' t$e &arties. 2$e elections ,ere !eclare! n%ll an! voi! &rimaril' (or (ail%re to com&l' ,it$ )ection /.0 o( DLG Circ%lar No. 88D58 ,$ic$ &rovi!es t$at "t$e inc%mbent F#BC =resi!ent or t$e KiceD=resi!ent s$all &resi!e over t$e reorganiBational meeting t$ere being a .%or%m." 2$e r%le s&eci(icall' &rovi!es t$at it is t$e inc%mbent F#BC =resi!ent or KiceD =resi!ent ,$o s$all &resi!e over t$e meeting. 2$e ,or! "s$all" s$o%l! be ta+en in its or!inar' signi(ication i.e. it m%st be im&erative or man!ator' an! not merel' &ermissive 17 as t$e r%le is e4&licit an! re.%ires no ot$er inter&retation. *( it $a! been inten!e! t$at an' ot$er o((icial s$o%l! &resi!e t$e r%les ,o%l! $ave &rovi!e! so as it !i! in t$e elections at t$e to,n an! cit' levels 18 as ,ell as t$e regional level.. 18 *t is a!mitte! t$at neit$er t$e inc%mbent F#BC =resi!ent nor t$e KiceD=resi!ent &resi!e! over t$e meeting an! elections b%t #lberto =. Molina 7r. t$e C$airman o( t$e Boar! o( 3lection )%&ervisors?Cons%ltants. 2$%s t$ere ,as a clear violation o( t$e a(oresai! man!ator' &rovision. On t$is gro%n! t$e elections s$o%l! be n%lli(ie!. @n!er )ec. /.1./.7 o( t$e same circ%lar it is &rovi!e! t$at a Boar! o( 3lection )%&ervisors?Cons%ltants s$all be constit%te! to oversee an!?or ,itness t$e canvassing o( votes an! &roclamation o( ,inners. 2$e r%les con(ine t$e role o( t$e Boar! o( 3lection )%&ervisors?Cons%ltants to merel' overseeing an! ,itnessing t$e con!%ct o( elections. 2$is is consistent ,it$ t$e &rovision in t$e Local Government Co!e limiting t$e a%t$orit' o( t$e COM3L3C to t$e s%&ervision o( t$e election. *n case at bar =GOO Molina t$e C$airman o( t$e Boar! &resi!e! over t$e elections. 2$ere ,as !irect &artici&ation b' t$e C$airman o( t$e Boar! in t$e elections contrar' to ,$at is !ictate! b' t$e r%les. 6orse t$ere ,as no Boar! o( 3lection )%&ervisors to oversee t$e elections in vie, o( t$e ,al+ o%t stage! b' its t,o ot$er members t$e =rovincial COM3L3C )%&ervisor an! t$e =rovincial 2reas%rer. 2$e ob9ective o( +ee&ing t$e election (ree an! $onest ,as t$ere(ore com&romise!. 2$e Co%rt t$ere(ore (in!s t$at t$e election o( o((icers o( t$e F#BC $el! on 7%ne 18 1888 is n%ll an! voi! (or (ail%re to com&l' ,it$ t$e &rovisions o( DLG Circ%lar No. 88D58. Mean,$ile &en!ing resol%tion o( t$is &etition &etitioner (ile! a s%&&lemental &etition alleging t$at &%blic res&on!ent Local Government )ecretar' in $is memoran!%m !ate! 7%ne 7 1885 !esignate! #%g%sto #ntonio as tem&orar' re&resentative o( t$e Fe!eration to t$e sangg%niang &anlala,igan o( Catan!%anes. B' virt%e o( t$is memoran!%m res&on!ent governor s,ore into sai! o((ice #%g%sto #ntonio on 7%ne 10 1885.
/.
/.
/8/

2$e )olicitor General (ile! $is comment on t$e s%&&lemental &etition 01 as re.%ire! b' t$e resol%tion o( t$e Co%rt !ate! )e&tember 11 1885. *n $is comment t$e )olicitor General !ismisse! t$e s%&ervening event allege! b' &etitioner as somet$ing immaterial to t$e &etition. He arg%es t$at #ntonioHs a&&ointment ,as merel' tem&orar' "%ntil s%c$ time t$at t$e &rovincial F#BC &resi!ent in t$at &rovince $as been electe! a&&ointe! an! .%ali(ie!." 00 He stresses t$at #ntonioHs a&&ointment ,as onl' a reme!ial meas%re !esigne! to co&e ,it$ t$e &roblems bro%g$t abo%t b' t$e absence o( a re&resentative o( t$e F#BC to t$e "sangg%nian ang &anlala,igan." )ec. /5C ;/< o( t$e Local Government Co!e ;B.=. Blg. 117< &rovi!esD ;/< 2$e sangg%niang &anlala,igan s$all be com&ose! o( t$e governor t$e viceDgovernor elective members o( t$e sai! sangg%nian an! t$e &resi!ents o( t$e +ati&%nang &anlala,igan an! t$e +abataang baranga' &rovincial (e!eration ,$o s$all be a&&ointe! b' t$e =resi!ent o( t$e =$ili&&ines. Batas =ambansa Blg. C1 %n!er )ec. / li+e,ise states: 2$e sangg%niang &anlala,igan o( eac$ &rovince s$all be com&ose! o( t$e governor as c$airman an! &resi!ing o((icer t$e viceDgovernor as &resi!ing o((icer &ro tem&ore t$e elective sangg%niang &anlala,igan members an! t$e a&&ointive members consisting o( t$e &resi!ent o( t$e &rovincial association o( baranga' co%ncils an! t$e &resi!ent o( t$e &rovincial (e!eration o( t$e +abataang baranga'. *n *gnacio vs. Banate 7r. 0C t$e Co%rt inter&reting similarl' ,or!e! &rovisions o( Batas =ambansa Blg. 117 an! Batas =ambansa Blg. C1 on t$e com&osition o( t$e sangg%niang &anl%ngso! 0G !eclare! as n%ll an! voi! t$e a&&ointment o( &rivate res&on!ent Leoncio Banate 7r. as member o( t$e )angg%niang =anl%ngso! o( t$e Cit' o( -o4as re&resenting t$e +ati&%nang &anl%ngso! ng mga baranga' (or $e lac+e! t$e elegibilit' an! .%ali(ication re.%ire! b' la, not being a baranga' ca&tain an! (or not $aving been electe! &resi!ent o( t$e association o( baranga' co%ncils. 2$e Co%rt $el! t$at an %n.%ali(ie! &erson cannot be a&&ointe! a member o( t$e sangg%nian even in an acting ca&acit'. *n -e'es vs. Ferrer 07 t$e a&&ointment o( Nemesio L. -asgo 7r. as re&resentative o( t$e 'o%t$ sector to t$e sangg%niang &anl%ngso! o( Davao Cit' ,as !eclare! invali! since $e ,as never t$e &resi!ent o( t$e +abataang baranga' cit' (e!eration as re.%ire! b' )ec. 171 Batas =ambansa Blg. 117. *n t$e &resent controvers' involving t$e sangg%niang &anlala,igan t$e la, is li+e,ise e4&licit. 2o be a&&ointe! b' t$e =resi!ent o( t$e =$ili&&ines to sit in t$e sangg%niang &anlala,igan is t$e &resi!ent o( t$e +ati&%nang &anlala,igan. 2$e a&&ointee m%st meet t$e .%ali(ications set b' la,. 08 2$e a&&ointing &o,er is bo%n! b' la, to com&l' ,it$ t$e re.%irements as to t$e basic .%ali(ications o( t$e a&&ointee to t$e sangg%niang &anlala,igan. 2$e =resi!ent o( t$e =$ili&&ines or $is alter ego t$e )ecretar' o( Local Government $as no a%t$orit' to a&&oint an'one ,$o !oes not meet t$e minim%m .%ali(ication to be t$e &resi!ent o( t$e (e!eration o( baranga' co%ncils. #%g%sto #ntonio is not t$e &resi!ent o( t$e (e!eration. He is a member o( t$e (e!eration b%t $e ,as not even &resent !%ring t$e elections !es&ite notice. 2$e arg%ment t$at #ntonio ,as a&&ointe! as a reme!ial meas%re in t$e e4igenc' o( t$e service cannot be s%staine!. )ince #ntonio !oes not meet t$e basic .%ali(ication o( being &resi!ent o( t$e (e!eration $is a&&ointment to t$e sangg%niang &anlala,igan is not 9%sti(ie! not,it$stan!ing t$at s%c$ a&&ointment is merel' in a tem&orar' ca&acit'. *( t$e intention o( t$e res&on!ent )ecretar' ,as to &rotect t$e interest o( t$e (e!eration in t$e sangg%nian $e s$o%l! $ave a&&ointe! t$e inc%mbent F#BC =resi!ent in a $ol!Dover ca&acit'. For even %n!er t$e g%i!elines t$e term o( o((ice o( o((icers o( t$e +ati&%nan at all levels s$all be (rom t$e !ate o( t$eir election %ntil t$eir s%ccessors s$all $ave been !%l' electe! an! .%ali(ie! ,it$o%t &re9%!ice to t$e terms o( t$eir a&&ointments as members o( t$e sangg%nian to ,$ic$ t$e' ma' be corres&on!ingl' a&&ointe!. )ince t$e election is still %n!er &rotest s%c$ t$at no s%ccessor o( t$e inc%mbent $as as 'et .%ali(ie! t$e res&on!ent )ecretar' $as no c$oice b%t to $ave t$e inc%mbent F#BC =resi!ent sit as member o( t$e sangg%nian. He co%l! even $ave a&&ointe! &etitioner since $e ,as electe! t$e &resi!ent o( t$e (e!eration b%t not #ntonio. 2$e a&&ointment o( #ntonio allege!l' t$e &rotege o( res&on!ent Governor gives cre!ence to &etitionerHs c$arge o( &olitical inter(erence b' res&on!ent Governor in
/81

t$e organiBation. 2$is s$o%l! not be allo,e!. 2$e baranga's s$o%l! be ins%late! (rom an' &artisan activit' or &olitical intervention i( onl' to give tr%e meaning to local a%tonom'. Carpio v. %xecutive (ecretar# Facts: -e&%blic #ct No. G87C entitle! "#N #C2 3)2#BL*)H*NG 2H3 =H*L*==*N3 N#2*ON#L =OL*C3 @ND3- # -3O-G#N*Z3D D3=#-2M3N2 OF 2H3 *N23-*O- #ND LOC#L GOK3-NM3N2 #ND FO- O2H3- =@-=O)3)" ,as enacte!. Car&io assails sai! -#>s constit%tionalit'. B%t in an en banc resol%tion !ate! December /7 1885 t$ )C sim&l' re.%ire! t$e &%blic res&on!ents to (ile t$eir Comment ,it$o%t $o,ever giving !%e co%rse to t$e &etition an! t$e &ra'er t$erein. Hence t$e #ct too+ e((ect a(ter (i(teen !a's (ollo,ing its &%blication or on 7an%ar' 1 1881. *ss%e: 6ON -# G87C emasc%late! t$e National =olice Commission b' limiting its &o,er "to a!ministrative control" over t$e =$ili&&ine National =olice ;=N=< t$%s "control" remaine! ,it$ t$e De&artment )ecretar' %n!er ,$om bot$ t$e National =olice Commission an! t$e =N= ,ere &lace!. NO. t$e =resi!ent $as control o( all e4ec%tive !e&artments b%rea%s an! o((ices to la' at rest &etitionerHs contention on t$e matter. 2$is &resi!ential &o,er o( control over t$e e4ec%tive branc$ o( government e4ten!s over all e4ec%tive o((icers (rom Cabinet )ecretar' to t$e lo,liest cler+ 17 an! $as been $el! b' %s in t$e lan!mar+ case o( Mon!ano vs. )ilvosa 18 to mean "t$e &o,er o( Ut$e =resi!entV to alter or mo!i(' or n%lli(' or set asi!e ,$at a s%bor!inate o((icer $a! !one in t$e &er(ormance o( $is !%ties an! to s%bstit%te t$e 9%!gment o( t$e (ormer ,it$ t$at o( t$e latter." *t is sai! to be at t$e ver' "$eart o( t$e meaning o( C$ie( 34ec%tive." 3.%all' ,ell acce&te! as a corollar' r%le to t$e control &o,ers o( t$e =resi!ent is t$e "Doctrine o( W%ali(ie! =olitical #genc'". #s t$e =resi!ent cannot be e4&ecte! to e4ercise $is control &o,ers all at t$e same time an! in &erson $e ,ill $ave to !elegate some o( t$em to $is Cabinet members. @n!er t$is !octrine ,$ic$ recogniBes t$e establis$ment o( a single e4ec%tive "all e4ec%tive an! a!ministrative organiBations are a!9%ncts o( t$e 34ec%tive De&artment t$e $ea!s o( t$e vario%s e4ec%tive !e&artments are assistants an! agents o( t$e C$ie( 34ec%tive an! e4ce&t in cases ,$ere t$e C$ie( 34ec%tive is re.%ire! b' t$e Constit%tion or la, to act in &erson on t$e e4igencies o( t$e sit%ation !eman! t$at $e act &ersonall' t$e m%lti(ario%s e4ec%tive an! a!ministrative (%nctions o( t$e C$ie( 34ec%tive are &er(orme! b' an! t$ro%g$ t$e e4ec%tive !e&artments an! t$e acts o( t$e )ecretaries o( s%c$ !e&artments &er(orme! an! &rom%lgate! in t$e reg%lar co%rse o( b%siness %nless !isa&&rove! or re&robate! b' t$e C$ie( 34ec%tive &res%m&tivel' t$e acts o( t$e C$ie( 34ec%tive." 2$%s an! in s$ort "t$e =resi!entHs &o,er o( control is !irectl' e4ercise! b' $im over t$e members o( t$e Cabinet ,$o in t%rn an! b' $is a%t$orit' control t$e b%rea%s an! ot$er o((ices %n!er t$eir res&ective 9%ris!ictions in t$e e4ec%tive !e&artment." #!!itionall' t$e circ%mstance t$at t$e N#=OLCOM an! t$e =N= are &lace! %n!er t$e reorganiBe! De&artment o( *nterior an! Local Government is merel' an a!ministrative realignment t$at ,o%l! bolster a s'stem o( coor!ination an! coo&eration among t$e citiBenr' local e4ec%tives an! t$e integrate! la, en(orcement agencies an! &%blic sa(et' agencies create! %n!er t$e assaile! #ct /0 t$e (%n!ing o( t$e =N= being in large &art s%bsi!iBe! b' t$e national government. )%c$ organiBational setD%& !oes not !etract (rom t$e man!ate o( t$e Constit%tion t$at t$e national &olice (orce s$all be a!ministere! an! controlle! b' a national &olice commission as at an' rate an! in (act t$e #ct in .%estion a!e.%atel' &rovi!es (or a!ministration an! control at t$e commission level. =etitioner (%rt$er asserts t$at in mani(est !erogation o( t$e &o,er o( control o( t$e N#=OLCOM over t$e =N= -# G87C veste! t$e &o,er to c$oose t$e =N= =rovincial Director an! t$e C$ie(s o( =olice in t$e Governors an! Ma'ors res&ectivel'A t$e &o,er o( "o&erational s%&ervision an! control" over &olice %nits in cit' an! m%nici&al ma'orsA in t$e Civil )ervice Commission &artici&ation in a&&ointments to t$e &ositions o( )enior )%&erinten!ent to De&%t' DirectorDGeneral as ,ell as t$e a!ministration o( .%ali('ing entrance e4aminationsA !isci&linar' &o,ers over =N= members in t$e "=eo&leHs La, 3n(orcement Boar!s" an! in cit' an! m%nici&al ma'ors. Once more ,e (in! no real controvers' %&on t$e (oregoing assertions. *t is tr%e t$at ,$en t$e Constit%tional Commissioners o( 188G &rovi!e! t$at t$e a%t$orit' o( local e4ec%tives over t$e &olice %nits in t$eir 9%ris!iction s$all be
/80

&rovi!e! b' la, t$e' inten!e! t$at t$e !a'DtoD!a' (%nctions o( &olice ,or+ li+e crime investigation crime &revention activities tra((ic control etc. ,o%l! be %n!er t$e o&erational control o( t$e local e4ec%tives as it ,o%l! not be a!visable to give (%ll control o( t$e &olice to t$e local e4ec%tives. 2$e' reasone! t$at in t$e &ast t$is gave rise to ,arlor!ism bossism an! sanct%aries (or vices an! ab%ses. *t ,o%l! a&&ear t$en t$at b' vesting in t$e local e4ec%tives t$e &o,er to c$oose t$e o((icers in .%estion t$e #ct ,ent be'on! t$e bo%n!s o( t$e Constit%tionHs intent. Not so. 6e (in! lig$t in t$e &rinci&le o( constit%tional constr%ction t$at ever' &res%m&tion s$o%l! be in!%lge! in (avor o( constit%tionalit' an! t$e co%rt in consi!ering t$e vali!it' o( t$e stat%te in .%estion s$o%l! give it s%c$ reasonable constr%ction as can be reac$e! to bring it ,it$in t$e (%n!amental la,. f6e agree an! so $ol! ,it$ t$e vie, o( t$e )olicitor General t$at "t$ere is no %s%r&ation o( t$e &o,er o( control o( t$e N#=OLCOM %n!er )ection C1 beca%se %n!er t$is ver' same &rovision it is clear t$at t$e local e4ec%tives are onl' acting as re&resentatives o( t$e N#=OLCOM. . . . #s s%c$ !e&%ties t$e' are ans,erable to t$e N#=OLCOM (or t$eir actions in t$e e4ercise o( t$eir (%nctions %n!er t$at section. 2$%s %nless co%nterman!e! b' t$e N#=OLCOM t$eir acts are vali! an! bin!ing as acts o( t$e N#=OLCOM." *t is signi(icant to note t$at t$e local o((icials as N#=OLCOM re&resentatives ,ill c$oose t$e o((icers concerne! (rom a list o( eligibles ;t$ose ,$o meet t$e general .%ali(ications (or a&&ointment to t$e =N=< to be recommen!e! b' =N= o((icials. 2$e same $ol!ing is tr%e ,it$ res&ect to t$e contention on t$e o&erational s%&ervision an! control e4ercise! b' t$e local o((icials. 2$ose o((icials ,o%l! sim&l' be acting as re&resentatives o( t$e Commission. 2$e grant o( !isci&linar' &o,ers over =N= members to t$e "=eo&leHs La, 3n(orcement Boar!s" ;or t$e =L3B< an! cit' an! m%nici&al ma'ors is also not in !erogation o( t$e commissionHs &o,er o( control over t$e =N=. =%rs%ant to t$e #ct t$e Commission e4ercises a&&ellate 9%ris!iction t$r% t$e regional a&&ellate boar!s over !ecisions o( bot$ t$e =L3B an! t$e sai! ma'ors. 2$is is so %n!er )ection /5;c<. F%rt$ermore it is t$e Commission ,$ic$ s$all iss%e t$e im&lementing g%i!elines an! &roce!%res to be a!o&te! b' t$e =L3B (or in t$e con!%ct o( its $earings an! it ma' assign N#=OLCOM $earing o((icers to act as legal cons%ltants o( t$e =L3Bs. #s a !isci&linar' boar! &rimaril' create! to $ear an! !eci!e citiBenHs com&laints against erring o((icers an! members o( t$e =N= t$e establis$ment o( =L3Bs in ever' cit' an! m%nici&alit' ,o%l! all t$e more $el& &ro(essionaliBe t$e &olice (orce. )ec 1/ gives m%scle to an! en(orces t$e &ro&osition t$at t$e national &olice (orce !oes not (all %n!er t$e Comman!erDinD C$ie( &o,ers o( t$e =resi!ent. 2$is is necessaril' so since t$e &olice (orce not being integrate! ,it$ t$e militar' is not a &art o( t$e #rme! Forces o( t$e =$ili&&ines. #s a civilian agenc' o( t$e government it &ro&erl' comes ,it$in an! is s%b9ect to t$e e4ercise b' t$e =resi!ent o( t$e &o,er o( e4ec%tive control. Conse.%entl' )ection 1/ !oes not constit%te ab!ication o( comman!erDinDc$ie( &o,ers. *t sim&l' &rovi!es (or t$e transition &erio! or &rocess !%ring ,$ic$ t$e national &olice ,o%l! gra!%all' ass%me t$e civilian (%nction o( sa(eg%ar!ing t$e internal sec%rit' o( t$e )tate. @n!er t$is instance t$e =resi!ent to re&eat ab!icates not$ing o( $is ,ar &o,ers. *t ,o%l! bear to $ere state in reiteration o( t$e &re&on!erant vie, t$at t$e =resi!ent as Comman!erDinDC$ie( is not a member o( t$e #rme! Forces. He remains a civilian ,$ose !%ties %n!er t$e Comman!erDinDC$ie( &rovision "re&resent onl' a &art o( t$e organic !%ties im&ose! %&on $im. #ll $is ot$er (%nctions are clearl' civil in nat%re." 11 His &osition as a civilian Comman!erDinDC$ie( is consistent ,it$ an! a testament to t$e constit%tional &rinci&le t$at "civilian a%t$orit' is at all times s%&reme over t$e militar'." ;#rticle ** )ection 1 1887 Constit%tion< Finall' &etitioner s%bmits t$at t$e creation o( a ")&ecial Oversig$t Committee" %n!er )ection 80 o( t$e #ct es&eciall' t$e incl%sion t$erein o( some legislators as members ;namel': t$e res&ective C$airmen o( t$e Committee on Local Government an! t$e Committee on National De(ense an! )ec%rit' in t$e )enate an! t$e res&ective C$airmen o( t$e Committee on =%blic Or!er an! )ec%rit' an! t$e Committee on National De(ense in t$e Ho%se o( -e&resentatives< is an "%nconstit%tional encroac$ment %&on an! a !imin%tion o( t$e =resi!entHs
/8C

&o,er o( control over all e4ec%tive !e&artments b%rea%s an! o((ices." B%t t$ere is not t$e least inter(erence ,it$ t$e =resi!entHs &o,er o( control %n!er )ection 80. 2$e )&ecial Oversig$t Committee is sim&l' an a! $oc or transitor' bo!' establis$e! an! tas+e! solel' ,it$ &lanning an! overseeing t$e imme!iate "trans(er merger an!?or absor&tion" into t$e De&artment o( t$e *nterior an! Local Governments o( t$e "involve! agencies." 2$is it ,ill %n!erta+e in accor!ance ,it$ t$e &$ases o( im&lementation alrea!' lai! !o,n in )ection 8C o( t$e #ct an! once t$is is carrie! o%t its (%nctions as ,ell as t$e committee itsel( ,o%l! cease altoget$er. 1/ #s an a! $oc bo!' its creation an! t$e (%nctions it e4ercises !eci!e!l' !o not constit%te an encroac$ment an! in !imin%tion o( t$e &o,er o( control ,$ic$ &ro&erl' belongs to t$e =resi!ent. 6$at is more no e4ec%tive !e&artment b%rea% or o((ice is &lace! %n!er t$e control or a%t$orit' o( t$e committee. *rilon v. Lim /supra- see p. EB1 Bito;Onon v. &ernan ez Facts: 7oel BitoDOnon is t$e !%l' electe! Baranga' C$airman o( Baranga' 2acras Narra =ala,an an! is t$e M%nici&al Liga C$a&ter =resi!ent (or t$e M%nici&alit' o( Narra =ala,an. 2$e &rivate res&on!ent 3legio W%e9ano 7r. on t$e ot$er $an! is t$e !%l' electe! Baranga' C$airman o( Baranga' -iBal Magsa'sa' =ala,an an! is t$e M%nici&al Liga C$a&ter =resi!ent (or t$e M%nici&alit' o( Magsa'sa' =ala,an. Bot$ Onon an! W%e9ano ,ere can!i!ates (or t$e &osition o( 34ec%tive KiceD=resi!ent in t$e #%g%st /1 1887 election (or t$e Liga ng Baranga' =rovincial C$a&ter o( t$e &rovince o( =ala,an. Onon ,as &roclaime! t$e ,inning can!i!ate in t$e sai! election &rom&ting W%e9ano to (ile a &ost &roclamation &rotest ,it$ t$e Boar! o( 3lection )%&ervisors ;B3)< ,$ic$ ,as !eci!e! against $im on #%g%st /C 1887. Not satis(ie! ,it$ t$e !ecision o( t$e B3) W%e9ano (ile! a =etition (or -evie, o( t$e !ecision o( t$e B3) ,it$ t$e -egional 2rial Co%rt o( =ala,an an! =%erto =rincesa Cit' ;-2C<. On #&ril /G 1888 Onon (ile! a motion to !ismiss t$e =etition (or -evie, raising t$e iss%e o( 9%ris!iction. Onon claime! t$at t$e -2C $a! no 9%ris!iction to revie, t$e !ecisions ren!ere! b' t$e B3) in an' &ost &roclamation electoral &rotest in connection ,it$ t$e 1887 Liga ng mga Baranga' election o( o((icers an! !irectors. *n $is motion to !ismiss Onon claime! t$at t$e )%&&lemental G%i!elines (or t$e 1887 Liga ng mga Baranga' election iss%e! b' t$e D*LG on #%g%st 11 1887 in its Memoran!%m Circ%lar No. 87D181 &rovi!ing (or revie, o( !ecisions or resol%tions o( t$e B3) b' t$e reg%lar co%rts o( la, is an %ltra vires act an! is voi! (or being iss%e! ,it$o%t or in e4cess o( 9%ris!iction as its iss%ance is not a mere act o( s%&ervision b%t rat$er an e4ercise o( control over t$e LigaHs internal organiBation. On 7%ne // 1888 t$e -2C !enie! OnonHs motion to !ismiss. *n its or!er t$e -2C ratiocinate! t$at t$e )ecretar' o( t$e De&artment o( *nterior an! Local Government/ is veste! ,it$ t$e &o,er "to establis$ an! &rescribe r%les reg%lations an! ot$er iss%ances an! im&lementing la,s on t$e general s%&ervision o( local government %nits an! t$e &romotion o( local a%tonom' an! monitor com&liance t$ereo( b' sai! %nits."1 2$e -2C a!!e! t$at D*LG Circ%lar No. 87D 181 ,as iss%e! b' t$e D*LG )ecretar' &%rs%ant to $is r%leDma+ing &o,er as &rovi!e! (or %n!er )ection 7 C$a&ter ** Boo+ *K o( t$e #!ministrative Co!e.0 Conse.%entl' t$e -2C r%le! t$at it $a! 9%ris!iction over t$e &etition (or revie, (ile! b' W%e9a!a. Motion (or reconsi!eration o( t$e a(oresai! Or!er ,as !enie! &rom&ting t$e &etitioner to (ile t$e &resent &etition. *ss%e: 6ON t$e .%estione! &rovision in t$e MC ,as iss%e! b' t$e D*LG secretar' in e4cess o( $is a%t$orit'. 2$e resol%tion o( t$e &resent controvers' re.%ires an e4amination o( t$e .%estione! &rovision o( Memoran!%m Circ%lar No. 87D181 an! t$e *m&lementing -%les an! G%i!elines (or t$e 1887 General 3lections o( t$e Liga ng mga Baranga' O((icers an! Directors ;G%i!elines<. 2$e memoran!%m circ%lar rea!s inso(ar as &ertinent as (ollo,s: "#n' &ostD&roclamation &rotest m%st be (ile! ,it$ t$e B3) ,it$in t,ent'D(o%r ;/0< $o%rs (rom t$e closing o( t$e election. 2$e B3) s$all !eci!e t$e same ,it$in (ort'Deig$t ;08< $o%rs (rom recei&t t$ereo(. 2$e !ecision o( t$e B3) s$all be (inal an! imme!iatel' e4ec%tor' ,it$o%t &re9%!ice to t$e (iling o( a =etition (or -evie, ,it$ t$e reg%lar co%rts o( la,." On t$e ot$er $an! t$e G@*D3L*N3) &rovi!es t$at t$e B3) s$all $ave t$e (ollo,ing among its !%ties: "2o resolve an' &ostD&roclamation electoral &rotest ,$ic$ m%st be s%bmitte! in ,riting to t$is Boar! ,it$in t,ent'D(o%r ;/0<
/8G

$o%rs (rom t$e close o( electionA &rovi!e! sai! Boar! s$all ren!er its !ecision ,it$in (ort'Deig$t ;08< $o%rs (rom recei&t $ereo(A an! &rovi!e! (%rt$er t$at t$e !ecision m%st be s%bmitte! to t$e National Liga Hea!.%arters ,it$in t,ent'D (o%r ;/0< $o%rs (rom t$e sai! !ecision. 2$e !ecision o( t$e Boar! o( 3lection )%&ervisors in t$is res&ect s$all be s%b9ect to revie, b' t$e National Liga Boar! t$e !ecision o( ,$ic$ s$all be (inal an! e4ec%tor'." Memoran!%m Circ%lar No. 87D181 ,as iss%e! b' t$e D*LG )ecretar' &%rs%ant to t$e &o,er o( general s%&ervision o( t$e =resi!ent over all local government %nits ,$ic$ ,as !elegate! to t$e D*LG )ecretar' b' virt%e o( #!ministrative Or!er No. /G7 !ate! Febr%ar' 18 188/.11 2$e =resi!entHs &o,er o( general s%&ervision over local government %nits is con(erre! %&on $im b' t$e Constit%tion.10 2$e &o,er o( s%&ervision is !e(ine! as "t$e &o,er o( a s%&erior o((icer to see to it t$at lo,er o((icers &er(orm t$eir (%nctions in accor!ance ,it$ la,."1C 2$is is !isting%is$e! (rom t$e &o,er o( control or "t$e &o,er o( an o((icer to alter or mo!i(' or set asi!e ,$at a s%bor!inate o((icer $a! !one in t$e &er(ormance o( $is !%ties an! to s%bstit%te t$e 9%!gment o( t$e (ormer (or t$e latter." On man' occasions in t$e &ast t$is co%rt $as $a! t$e o&&ort%nit' to !isting%is$ t$e &o,er o( s%&ervision (rom t$e &o,er o( control. *n 2a%le vs. )antos 17 ,e $el! t$at t$e C$ie( 34ec%tive ,iel!e! no more a%t$orit' t$an t$at o( c$ec+ing ,$et$er a local government or t$e o((icers t$ereo( &er(orm t$eir !%ties as &rovi!e! b' stat%tor' enactments. He cannot inter(ere ,it$ local governments &rovi!e! t$at t$e same or its o((icers act ,it$in t$e sco&e o( t$eir a%t$orit'. )%&ervisor' &o,er ,$en contraste! ,it$ control is t$e &o,er o( mere oversig$t over an in(erior bo!'A it !oes not incl%!e an' restraining a%t$orit' over s%c$ bo!'.18 O((icers in control la' !o,n t$e r%les in t$e !oing o( an act. *( t$e' are not (ollo,e! it is !iscretionar' on $is &art to or!er t$e act %n!one or reD!one b' $is s%bor!inate or $e ma' even !eci!e to !o it $imsel(. )%&ervision !oes not cover s%c$ a%t$orit'. )%&ervising o((icers merel' sees to it t$at t$e r%les are (ollo,e! b%t $e $imsel( !oes not la' !o,n s%c$ r%les nor !oes $e $ave t$e !iscretion to mo!i(' or re&lace t$em. *( t$e r%les are not observe! $e ma' or!er t$e ,or+ !one or reD!one to con(orm to t$e &rescribe! r%les. He cannot &rescribe $is o,n manner (or t$e !oing o( t$e act. Does t$e =resi!entHs &o,er o( general s%&ervision e4ten! to t$e liga ng mga baranga' ,$ic$ is not a local government %nitT 6e r%le in t$e a((irmative. *n O&inion No. 01 )eries o( 188C t$e De&artment o( 7%stice r%le! t$at t$e liga ng mga baranga' is a government organiBation being an association (e!eration leag%e or %nion create! b' la, or b' a%t$orit' o( la, ,$ose members are eit$er a&&ointe! or electe! government o((icials. 2$e Local Government Co!e/1 !e(ines t$e liga ng mga baranga' as an organiBation o( all baranga's (or t$e &rimar' &%r&ose o( !etermining t$e re&resentation o( t$e liga in t$e sangg%nians an! (or ventilating artic%lating an! cr'stalliBing iss%es a((ecting baranga' government a!ministration an! sec%ring t$ro%g$ &ro&er an! legal means sol%tions t$ereto.// 2$e liga s$all $ave c$a&ters at t$e m%nici&al cit' &rovincial an! metro&olitan &olitical s%b!ivision levels. 2$e m%nici&al an! cit' c$a&ters o( t$e liga s$all be com&ose! o( t$e baranga' re&resentatives o( t$e m%nici&al an! cit' baranga's res&ectivel'. 2$e !%l' electe! &resi!ents o( t$e com&onent m%nici&al an! cit' c$a&ters s$all constit%te t$e &rovincial c$a&ter or t$e metro&olitan &olitical s%b!ivision c$a&ter. 2$e !%l' electe! &resi!ents o( $ig$l' %rbaniBe! cities &rovincial c$a&ters t$e Metro&olitan Manila c$a&ter an! metro&olitan &olitical s%b!ivision c$a&ters s$all constit%te t$e National Liga ng mga Baranga'. 2$e liga at t$e m%nici&al cit' &rovincial metro&olitan &olitical s%b!ivision an! national levels !irectl' elect a &resi!ent a viceD&resi!ent an! (ive ;C< members o( t$e boar! o( !irectors. 2$e boar! s$all a&&oint its secretar' an! treas%rer an! create s%c$ ot$er &ositions as it ma' !eem necessar' (or t$e management o( t$e c$a&ter. 2$e ligas are &rimaril' governe! b' t$e &rovisions o( t$e Local Government Co!e./C Ho,ever t$eir res&ective constit%tion an! b'Dla,s s$all govern all ot$er matters a((ecting t$e internal organiBation o( t$e liga not ot$er,ise &rovi!e! (or in t$e Local Government Co!e &rovi!e! t$at t$e constit%tion an! b'Dla,s s$all be s%&&letor' to t$e &rovisions o( Boo+ *** 2itle K* o( t$e Local Government Co!e an! s$all al,a's con(orm to t$e &rovisions o( t$e Constit%tion an! e4isting la,s.
/87
Mabelle O. Nebres | Local Governments Case Digests Having in min! t$e (oregoing &rinci&les ,e r%le t$at
Memoran!%m Circ%lar No. 87D181 o( t$e D*LG inso(ar as it a%t$oriBes t$e (iling a =etition (or -evie, o( t$e !ecision o( t$e B3) ,it$ t$e reg%lar co%rts in a &ost &roclamation electoral &rotest is o( !o%bt(%l constit%tionalit'. 6e agree ,it$ bot$ t$e &etitioner an! t$e )olicitor General t$at in a%t$oriBing t$e (iling o( t$e &etition (or revie, o( t$e !ecision o( t$e B3) ,it$ t$e reg%lar co%rts t$e D*LG )ecretar' in e((ect amen!e! an! mo!i(ie! t$e G@*D3L*N3) &rom%lgate! b' t$e National Liga Boar! an! a!o&te! b' t$e L*G# ,$ic$ &rovi!es t$at t$e !ecision o( t$e B3) s$all be s%b9ect to revie, b' t$e National Liga Boar!. 2$e amen!ment o( t$e G@*D3L*N3) is more t$an an e4ercise o( t$e &o,er o( s%&ervision b%t is an e4ercise o( t$e &o,er o( control ,$ic$ t$e =resi!ent !oes not $ave over t$e L*G#. #lt$o%g$ t$e D*LG is given t$e &o,er to &rescribe r%les reg%lations an! ot$er iss%ances t$e #!ministrative Co!e limits its a%t$orit' to merel' "monitoring com&liance" b' local government %nits o( s%c$ iss%ances./7 2o monitor means "to ,atc$ observe or c$ec+" an! is com&atible ,it$ t$e &o,er o( s%&ervision o( t$e D*LG )ecretar' over local governments ,$ic$ is limite! to c$ec+ing ,$et$er t$e local government %nit concerne! or t$e o((icers t$ereo( &er(orm t$eir !%ties as &er stat%tor' enactments. Besi!es an' !o%bt as to t$e &o,er o( t$e D*LG )ecretar' to inter(ere ,it$ local a((airs s$o%l! be resolve! in (avor o( t$e greater a%tonom' o( t$e local government. ,ational Liga ng mga Baranga# v. Pare es Facts: On 11 7%ne 1887 -a'os =%nong Baranga' o( Baranga' C/ District ** Zone C District ** Caloocan Cit' (ile! a &etition (or &ro$ibition an! man!am%s ,it$ &ra'er (or a ,rit o( &reliminar' in9%nction an!?or tem&orar' restraining or!er an! !amages be(ore t$e -2C o( Caloocan alleging t$at Davi! =%nong Baranga' o( Baranga' 77 Zone 7 Caloocan Cit' an! t$en &resi!ent o( t$e Liga C$a&ter o( Caloocan Cit' an! o( t$e Liga ng mga Baranga' National C$a&ter committe! certain irreg%larities in t$e notice ven%e an! con!%ct o( t$e &ro&ose! s'nc$roniBe! Liga ng mga Baranga' elections in 1887. On 11 7%ne 1887 t$e 34ec%tive 7%!ge iss%e! a tem&orar' restraining or!er ;2-O< e((ective (or sevent'Dt,o ;7/< $o%rs en9oining t$e $ol!ing o( t$e general members$i& an! election meeting o( Liga C$a&ter o( Caloocan Cit' on 10 7%ne 187C. Ho,ever t$e 2-O ,as allege!l' not &ro&erl' serve! on $erein &etitioner Davi! an! so t$e election (or t$e o((icers o( t$e LigaD Caloocan ,as $el! as sc$e!%le!. =etitioner Davi! ,as &roclaime! =resi!ent o( t$e LigaDCaloocan an! t$erea(ter too+ $is oat$ an! ass%me! t$e &osition o( e4Do((icio member o( t$e )angg%niang =anl%ngso! o( Caloocan. On 17 7%l' 1887 res&on!ent -a'os (ile! a secon! &etition t$is time (or .%o ,arranto man!am%s an! &ro$ibition ,it$ &ra'er (or a ,rit o( &reliminar' in9%nction an!?or tem&orar' restraining or!er an! !amages against Davi! Nanc' W%im&o =resi!ing O((icer o( t$e )angg%niang =anl%ngso! o( Caloocan Cit' an! )ecretar' Barbers.7 -a'os allege! t$at $e ,as electe! =resi!ent o( t$e Liga Caloocan C$a&ter in t$e elections $el! on 10 7%ne 1887 b' t$e members o( t$e Caloocan C$a&ter &%rs%ant to t$eir -esol%tion?=etition No. 551D87.8 On 18 7%l' 1887 t$e &resi!ing 9%!ge grante! t$e 2-O en9oining t$erein res&on!ents Davi! W%im&o an! )ecretar' Barbers (rom &rocee!ing ,it$ t$e s'nc$roniBe! elections (or t$e =rovincial an! Metro&olitan C$a&ters o( t$e Liga sc$e!%le! on 18 7%l' 1887 b%t onl' (or t$e &%r&ose o( maintaining t$e stat%s .%o an! e((ective (or a &erio! not e4cee!ing sevent'Dt,o ;7/< $o%rs. 3vent%all' on 18 7%l' 1887 at &etitioner Davi!>s instance )&ecial Civil #ction ;)C#< No. CDC1/ &en!ing be(ore Branc$ 1/G ,as consoli!ate! ,it$ )C# No. CDC58 &en!ing be(ore Branc$ 1/0. Be(ore t$e consoli!ation o( t$e cases on /C 7%l' 1887 t$e D*LG t$ro%g$ res&on!ent )ecretar' Barbers (ile! in )C# No. CDC1/ an @rgent Motion invo+ing t$e =resi!ent>s &o,er o( general s%&ervision over all local government %nits an! see+ing t$at t$e D*LG &%rs%ant to its !elegate! &o,er o( general s%&ervision be a&&ointe! as t$e *nterim Careta+er to manage an! a!minister t$e a((airs o( t$e Liga %ntil s%c$ time t$at t$e ne, set o( National Liga O((icers s$all $ave been !%l' electe! an! ass%me! o((ice. *ss%e: 6ON t$e Liga ng mga Baranga' is s%b9ect to D*LG s%&ervision. BitoDOnon v. Fernan!eB: Co%rt r%le! t$at t$e =resi!ent>s &o,er o( t$e general s%&ervision as e4ercise! t$erein b' t$e D*LG )ecretar' as $is alter ego e4ten!s to t$e Liga ng mga Baranga'. Does t$e =resi!ent>s &o,er o( general s%&ervision e4ten! to t$e liga ng mga baranga' ,$ic$ is not a local government
/88

%nitT 6e r%le in t$e a((irmative. *n O&inion No. 01 )eries o( 188C t$e De&artment o( 7%stice r%le! t$at t$e liga ng mga baranga' is a government organiBation being an association (e!eration leag%e or %nion create! b' la, or b' a%t$orit' o( la, ,$ose members are eit$er a&&ointe! or electe! government o((icials. 2$e Local Government Co!e !e(ines t$e liga ng mga baranga' as an organiBation o( all baranga's (or t$e &rimar' &%r&ose o( !etermining t$e re&resentation o( t$e liga in t$e sangg%nians an! (or ventilating artic%lating an! cr'stalliBing iss%es a((ecting baranga' government a!ministration an! sec%ring t$ro%g$ &ro&er an! legal means sol%tions t$ereto. 2$e rationale (or ma+ing t$e Liga s%b9ect to D*LG s%&ervision is .%ite evi!ent ,$et$er (rom t$e &ers&ectives o( logic or o( &racticalit'. 2$e Liga is an aggro%&ment o( baranga's ,$ic$ are in t%rn re&resente! t$erein b' t$eir res&ective &%nong baranga's. 2$e re&resentatives o( t$e Liga sit in an e4 o((icio ca&acit' at t$e m%nici&al cit' an! &rovincial sangg%nians. #s s%c$ t$e' en9o' all t$e &o,ers an! !isc$arge all t$e (%nctions o( reg%lar m%nici&al co%ncilors cit' co%ncilors or &rovincial boar! members as t$e case ma' be. 2$%s t$e Liga is t$e ve$icle t$ro%g$ ,$ic$ t$e baranga' &artici&ates in t$e enactment o( or!inances an! (orm%lation o( &olicies at all t$e legislative local levels $ig$er t$an t$e sangg%niang baranga' at t$e same time serving as t$e mec$anism (or t$e bottomDtoDto& a&&roac$ o( !evelo&ment. *n t$e case at bar even be(ore t$e res&on!ent 7%!ge !esignate! t$e D*LG as interim careta+er o( t$e Liga on /8 7%l' 1887 it iss%e! Memoran!%m Circ%lar No. 87D17G !irecting local government o((icials not to recogniBe Davi! as t$e National Liga =resi!ent an! $is &rono%ncements relating to t$e a((airs o( t$e Liga. Not onl' ,as t$e action &remat%re it even smac+e! o( s%&ercilio%sness an! in9%!icio%sness. 2$e D*LG is t$e to&most government agenc' ,$ic$ maintains coor!ination ,it$ an! e4ercises s%&ervision over local government %nits an! its m%ltiDlevel leag%es. #s s%c$ it s$o%l! be (ort$rig$t circ%ms&ect an! s%&&ortive in its !ealings ,it$ t$e Ligas es&eciall' t$e Liga ng mga Baranga'. 2$e in!is&ensable role &la'e! b' t$e latter in t$e !evelo&ment o( t$e baranga's an! t$e &romotion o( t$e ,el(are o( t$e in$abitants t$ereo( !eserve no less t$an t$e (%ll s%&&ort an! res&ect o( t$e ot$er agencies o( government. #s t$e Co%rt $el! in t$e case o( )an 7%an v. Civil )ervice Commission 8/ o%r national o((icials s$o%l! not onl' com&l' ,it$ t$e constit%tional &rovisions on local a%tonom' b%t s$o%l! also a&&reciate t$e s&irit o( libert' %&on ,$ic$ t$ese &rovisions are base!. 6$en t$e res&on!ent 9%!ge event%all' a&&ointe! t$e D*LG as interim careta+er to manage an! a!minister t$e a((airs o( t$e Liga s$e e((ectivel' remove! t$e management (rom t$e National Liga Boar! an! veste! control o( t$e Liga on t$e D*LG. 3ven a c%rsor' glance at t$e D*LG>s &ra'er (or a&&ointment as interim careta+er o( t$e Liga "to manage an! a!minister t$e a((airs o( t$e Liga %ntil s%c$ time t$at t$e ne, set o( National Liga o((icers s$all $ave been !%l' electe! an! ass%me! o((ice" reveals t$at ,$at t$e D*LG ,ante! ,as to ta+e control over t$e Liga. 3ven i( sai! "careta+ers$i&" ,as contem&late! to last (or a limite! time or onl' %ntil a ne, set o( o((icers ass%me o((ice t$e (act remains t$at it ,as a con(erment o( control in !erogation o( t$e Constit%tion. 6it$ $is De&artment alrea!' a&&ointe! as interim careta+er o( t$e Liga )ecretar' Barbers n%lli(ie! t$e res%lts o( t$e Liga elections an! &rom%lgate! D*LG Memoran!%m Circ%lar No. 87D181 !ate! 11 #%g%st 1887 ,$ere $e lai! !o,n t$e s%&&lemental g%i!elines (or t$e 1887 s'nc$roniBe! elections o( t$e &rovincial an! metro&olitan c$a&ters an! (or t$e election o( t$e national c$a&ter o( t$e Liga ng mga Baranga'A sc$e!%le! !ates (or t$e ne, &rovincial metro&olitan an! national c$a&ter electionsA an! a&&ointe! res&on!ent -a'os as &resi!ent o( LigaDCaloocan C$a&ter. 2$ese acts o( t$e D*LG ,ent be'on! t$e s&$ere o( general s%&ervision an! constit%te! !irect inter(erence ,it$ t$e &olitical a((airs not onl' o( t$e Liga b%t more im&ortantl' o( t$e baranga' as an instit%tion. 2$e election o( Liga o((icers is &art o( t$e Liga>s internal organiBation (or ,$ic$ t$e latter $as alrea!' &rovi!e! g%i!elines. *n s%ccession t$e D*LG ass%me! ste,ar!s$i& an! 9%ris!iction over t$e Liga a((airs iss%e! s%&&lemental g%i!elines (or t$e election an! n%lli(ie! t$e e((ects o( t$e LigaDcon!%cte! elections. Clearl' ,$at t$e D*LG ,iel!e! ,as t$e &o,er o( control ,$ic$ even t$e =resi!ent !oes not $ave.
/88
Mabelle O. Nebres | Local Governments Case Digests F%rt$ermore t$e D*LG ass%me! control ,$en it a&&ointe!
res&on!ent -a'os as &resi!ent o( t$e LigaDCaloocan C$a&ter &rior to t$e ne,l' sc$e!%le! general Liga elections alt$o%g$ &etitioner Davi!>s term $a! not 'et e4&ire!. 2$e D*LG s%bstit%te! its c$oice ,$o ,as -a'os over t$e c$oice o( ma9orit' o( t$e &%nong baranga' o( Caloocan ,$o ,as t$e inc%mbent =resi!ent &etitioner Davi!. 2$e latter ,as electe! an! $a! in (act been sitting as an e4Do((icio member o( t$e sangg%niang &anl%ngso! in accor!ance ,it$ t$e Liga Constit%tion an! B'DLa,s. :et t$e D*LG e4ten!e! t$e a&&ointment to res&on!ent -a'os alt$o%g$ it ,as a,are t$at t$e &osition ,as t$e s%b9ect o( a .%o ,arranto &rocee!ing instit%te! b' -a'os $imsel( t$ereb' &reem&ting t$e o%tcome o( t$at case. *t ,as ba! eno%g$ t$at t$e D*LG ass%me! t$e &o,er o( control it ,as ,orse ,$en it ma!e %se o( t$e &o,er ,it$ evi!ent bias an! &artialit'. #s t$e entit' e4ercising s%&ervision over t$e Liga ng mga Baranga' t$e D*LG>s a%t$orit' over t$e Liga is limite! to seeing to it t$at t$e r%les are (ollo,e! b%t it cannot la' !o,n s%c$ r%les itsel( nor !oes it $ave t$e !iscretion to mo!i(' or re&lace t$em. *n t$is &artic%lar case t$e most t$at t$e D*LG co%l! !o ,as revie, t$e acts o( t$e inc%mbent o((icers o( t$e Liga in t$e con!%ct o( t$e elections to !etermine i( t$e' committe! an' violation o( t$e Liga>s Constit%tion an! B'Dla,s an! its im&lementing r%les. *( t$e National Liga Boar! an! its o((icers $a! violate! Liga r%les t$e D*LG s$o%l! $ave or!ere! t$e Liga to con!%ct anot$er election in accor!ance ,it$ t$e Liga>s o,n r%les b%t not in obeisance to D*LGD!ictate! g%i!elines. Neit$er $a! t$e D*LG t$e a%t$orit' to remove t$e inc%mbent o((icers o( t$e Liga an! re&lace t$em even tem&oraril' ,it$ %nelecte! Liga o((icers. Li+e t$e local government %nits t$e Liga ng mga Baranga' is not s%b9ect to control b' t$e C$ie( 34ec%tive or $is alter ego. *n t$e BitoDOnon80 case t$is Co%rt $el! t$at D*LG Memoran!%m Circ%lar No. 87D181 inso(ar as it a%t$oriBe! t$e (iling o( a &etition (or revie, o( t$e !ecision o( t$e Boar! o( 3lection )%&ervisors ;B3)< ,it$ t$e reg%lar co%rts in a &ostD&roclamation electoral &rotest involve! t$e e4ercise o( control as it in e((ect amen!e! t$e g%i!elines alrea!' &rom%lgate! b' t$e Liga. O((icers in control la' !o,n t$e r%les in t$e !oing o( an act. *( t$e' are not (ollo,e! it is !iscretionar' on $is &art to or!er t$e act %n!one or re!one b' $is s%bor!inate or $e ma' even !eci!e to !o it $imsel(. )%&ervision !oes not cover s%c$ a%t$orit'. )%&ervising o((icers merel' see to it t$at t$e r%les are (ollo,e! b%t $e $imsel( !oes not la' !o,n s%c$ r%les nor !oes $e $ave t$e !iscretion to mo!i(' or re&lace t$em. *( t$e r%les are not observe! $e ma' or!er t$e ,or+ !one or reD!one to con(orm (or to t$e &rescribe! r%les. He cannot &rescribe $is o,n manner t$e !oing o( t$e act. 2$e amen!ment o( t$e G@*D3L*N3) is more t$an an e4ercise o( t$e &o,er o( s%&ervision b%t is an e4ercise o( t$e &o,er o( control ,$ic$ t$e =resi!ent !oes not $ave over t$e L*G#. #lt$o%g$ t$e D*LG is given t$e &o,er to &rescribe r%les reg%lations an! ot$er iss%ances t$e #!ministrative Co!e limits its a%t$orit' to merel' "monitoring com&liance b' local government %nits o( s%c$ iss%ances. 2o monitor means to ",atc$ observe or c$ec+" an! is com&atible ,it$ t$e &o,er o( s%&ervision o( t$e D*LG )ecretar' over local governments ,$ic$ is limite! to c$ec+ing ,$et$er t$e local government %nit concerne! or t$e o((icers t$ereo( &er(orm t$eir !%ties as &er stat%tor' enactments. Besi!es an' !o%bt as to t$e &o,er o( t$e D*LG )ecretar' to inter(ere ,it$ local a((airs s$o%l! be resolve! in (avor o( t$e greater a%tonom' o( t$e local government. *n 2a%le 8G t$e Co%rt r%le! t$at t$e )ecretar' o( Local Government $a! no a%t$orit' to &ass %&on t$e vali!it' or reg%larit' o( t$e election o( o((icers o( +ati&%nan ng mga baranga' or baranga' co%ncils. *n t$at case a &rotest ,as lo!ge! be(ore t$e )ecretar' o( Local Government regar!ing several irreg%larities in an! see+ing t$e n%lli(ication o( t$e election o( o((icers o( t$e Fe!eration o( #ssociations o( Baranga' Co%ncils ;F#BC< o( Catan!%anes. 2$en Local Government )ecretar' L%is )antos iss%e! a resol%tion n%lli('ing t$e election o( o((icers an! or!ere! a ne, one to be con!%cte!. 2$e Co%rt r%le!: Constr%ing t$e constit%tional limitation on t$e &o,er o( general s%&ervision o( t$e =resi!ent over local governments 6e $ol! t$at res&on!ent )ecretar' $as no a%t$orit' to &ass %&on t$e vali!it' or reg%larit' o( t$e o((icers o( t$e +ati&%nan. 2o allo, res&on!ent )ecretar' to !o so ,ill give $im more &o,er t$an t$e la, or t$e Constit%tion grants. *t ,ill in e((ect give $im control over local government o((icials (or it ,ill &ermit $im to inter(ere in a &%rel' !emocratic an! nonD&artisan
155

activit' aime! at strengt$ening t$e baranga' as t$e basic com&onent o( local governments so t$at t$e %ltimate goal o( (%llest a%tonom' ma' be ac$ieve!. *n (act $is or!er t$at t$e ne, elections to be con!%cte! be &resi!e! b' t$e -egional Director is a clear an! !irect inter(erence b' t$e De&artment ,it$ t$e &olitical a((airs o( t$e baranga's ,$ic$ is not &ermitte! b' t$e limitation o( &resi!ential &o,er to general s%&ervision over local governments. #ll given t$e Co%rt is convince! t$at t$e assaile! or!er ,as iss%e! ,it$ grave ab%se o( !iscretion ,$ile t$e acts o( t$e res&on!ent )ecretar' incl%!ing D*LG Memoran!%m Circ%lars No. 87D17G an! No. 87D181 are %nconstit%tional an! %ltra vires as t$e' all entaile! t$e con(erment or e4ercise o( control S a &o,er ,$ic$ is !enie! b' t$e Constit%tion even to t$e =resi!ent. Batangas v. Romulo Facts: 2$e =rovince o( Batangas re&resente! b' Governor Man!anas (ile! t$e &resent &etition (or certiorari &ro$ibition an! man!am%s %n!er -%le GC o( t$e -%les o( Co%rt as amen!e! to !eclare as %nconstit%tional an! voi! certain &rovisos containe! in t$e General #&&ro&riations #cts ;G##< o( 1888 /555 an! /551 inso(ar as t$e' %ni(orml' earmar+e! (or eac$ corres&on!ing 'ear t$e amo%nt o( (ive billion &esos ;=C 555 555 555.55< o( t$e *nternal -even%e #llotment ;*-#< (or t$e Local Government )ervice 3.%aliBation F%n! ;LG)3F< an! im&ose! con!itions (or t$e release t$ereo(. *ss%e: 6ON t$e &rovisos in t$e G##) o( 1888D/551 relating to t$e LG)3F as ,ell as t$e Oversig$t Committee>s -esol%tions iss%e! &%rs%ant t$ereto are %nconstit%tional an! voi! #rticle ** o( t$e Constit%tion t$e )tate $as e4&ressl' a!o&te! as a &olic' t$at: )ection /C. 2$e )tate s$all ens%re t$e a%tonom' o( local governments. Consistent ,it$ t$e &rinci&le o( local a%tonom' t$e Constit%tion con(ines t$e =resi!ent>s &o,er over t$e LG@s to one o( general s%&ervision. 2$is &rovision $as been inter&rete! to e4cl%!e t$e &o,er o( control. 2$e !istinction bet,een t$e t,o &o,ers ,as en%nciate! in Drilon v. Lim: #n o((icer in control la's !o,n t$e r%les in t$e !oing o( an act. *( t$e' are not (ollo,e! $e ma' in $is !iscretion or!er t$e act %n!one or reD!one b' $is s%bor!inate or $e ma' even !eci!e to !o it $imsel(. )%&ervision !oes not cover s%c$ a%t$orit'. 2$e s%&ervisor or s%&erinten!ent merel' sees to it t$at t$e r%les are (ollo,e! b%t $e $imsel( !oes not la' !o,n s%c$ r%les nor !oes $e $ave t$e !iscretion to mo!i(' or re&lace t$em. *( t$e r%les are not observe! $e ma' or!er t$e ,or+ !one or reD!one b%t onl' to con(orm to t$e &rescribe! r%les. He ma' not &rescribe $is o,n manner (or !oing t$e act. He $as no 9%!gment on t$is matter e4ce&t to see to it t$at t$e r%les are (ollo,e!. 2$e Local Government Co!e o( 1881 ,as enacte! to (les$ o%t t$e man!ate o( t$e Constit%tion. 2$e )tate &olic' on local a%tonom' is am&li(ie! in )ection / t$ereo(: )ec. /. Declaration o( =olic'. X ;a< *t is $ereb' !eclare! t$e &olic' o( t$e )tate t$at t$e territorial an! &olitical s%b!ivisions o( t$e )tate s$all en9o' gen%ine an! meaning(%l local a%tonom' to enable t$em to attain t$eir (%llest !evelo&ment as sel(D reliant comm%nities an! ma+e t$em more e((ective &artners in t$e attainment o( national goals. 2o,ar! t$is en! t$e )tate s$all &rovi!e (or a more res&onsive an! acco%ntable local government str%ct%re instit%te! t$ro%g$ a s'stem o( !ecentraliBation ,$ereb' local government %nits s$all be given more &o,ers a%t$orit' res&onsibilities an! reso%rces. 2$e &rocess o( !ecentraliBation s$all &rocee! (rom t$e National Government to t$e local government %nits. 2$e assaile! &rovisos in t$e G##s o( 1888 /555 an! /551 an! t$e OCD resol%tions violate t$e constit%tional &rece&t on local a%tonom' #rticle J o( t$e Constit%tion rea!s: )ec. G. Local government %nits s$all $ave a 9%st s$are as !etermine! b' la, in t$e national ta4es ,$ic$ s$all be a%tomaticall' release! to t$em. 6$en &arse! it ,o%l! be rea!il' seen t$at t$is &rovision man!ates t$at ;1< t$e LG@s s$all $ave a E9%st s$areF in t$e national ta4esA ;/< t$e E9%st s$areF s$all be !etermine! b' la,A an! ;1< t$e E9%st s$areF s$all be a%tomaticall' release! to t$e LG@s. 2$e Local Government Co!e o( 1881 among its salient &rovisions %n!erscores t$e a%tomatic release o( t$e LG@s> E9%st s$areF in t$is ,ise: )ec. 18. =o,er to Generate an! #&&l' -eso%rces. Local government %nits s$all $ave t$e &o,er an! a%t$orit' to establis$ an organiBation t$at s$all be res&onsible (or t$e e((icient an! e((ective im&lementation
151

o( t$eir !evelo&ment &lans &rogram ob9ectives an! &rioritiesA to create t$eir o,n so%rces o( reven%e an! to lev' ta4es (ees an! c$arges ,$ic$ s$all accr%e e4cl%sivel' (or t$eir %se an! !is&osition an! ,$ic$ s$all be retaine! b' t$emA to $ave a 9%st s$are in national ta4es ,$ic$ s$all be a%tomaticall' an! !irectl' release! to t$em ,it$o%t nee! o( (%rt$er actionA )ec. /8G. #%tomatic -elease o( )$ares. ;a< 2$e s$are o( eac$ local government %nit s$all be release! ,it$o%t nee! o( an' (%rt$er action !irectl' to t$e &rovincial cit' m%nici&al or baranga' treas%rer as t$e case ma' be on a .%arterl' basis ,it$in (ive ;C< !a's a(ter t$e en! o( eac$ .%arter an! ,$ic$ s$all not be s%b9ect to an' lien or $ol!bac+ t$at ma' be im&ose! b' t$e national government (or ,$atever &%r&ose. ;b< Not$ing in t$is C$a&ter s$all be %n!erstoo! to !iminis$ t$e s$are o( local government %nits %n!er e4isting la,s. #%tomatic: invol%ntar' eit$er ,$oll' or to a ma9or e4tent so t$at an' activit' o( t$e ,ill is largel' negligibleA o( a re(le4 nat%reA ,it$o%t volitionA mec$anicalA li+e or s%ggestive o( an a%tomaton. #s s%c$ t$e LG@s are not re.%ire! to &er(orm an' act to receive t$e E9%st s$areF accr%ing to t$em (rom t$e national co((ers. #s em&$asiBe! b' t$e Local Government Co!e o( 1881 t$e E9%st s$areF o( t$e LG@s s$all be release! to t$em E,it$o%t nee! o( (%rt$er action.F Constr%ing )ection /8G o( t$e LGC ,e $el! in =imentel 7r. v. #g%irre: )ection 0 o( #O 17/ cannot $o,ever be %&$el!. # basic (eat%re o( local (iscal a%tonom' is t$e a%tomatic release o( t$e s$ares o( LG@s in t$e National internal reven%e. 2$is is man!ate! b' no less t$an t$e Constit%tion. 2$e Local Government Co!e s&eci(ies (%rt$er t$at t$e release s$all be ma!e !irectl' to t$e LG@ concerne! ,it$in (ive ;C< !a's a(ter ever' .%arter o( t$e 'ear an! Es$all not be s%b9ect to an' lien or $ol!bac+ t$at ma' be im&ose! b' t$e national government (or ,$atever &%r&ose.F #s a r%le t$e term E)H#LLF is a ,or! o( comman! t$at m%st be given a com&%lsor' meaning. 2$e &rovision is t$ere(ore *M=3-#2*K3. )ection 0 o( #O 17/ $o,ever or!ers t$e ,it$$ol!ing e((ective 7an%ar' 1 1888 o( 15 &ercent o( t$e LG@s> *-# E&en!ing t$e assessment an! eval%ation b' t$e Develo&ment B%!get Coor!inating Committee o( t$e emerging (iscal sit%ationF in t$e co%ntr'. )%c$ ,it$$ol!ing clearl' contravenes t$e Constit%tion an! t$e la,. #lt$o%g$ tem&orar' it is e.%ivalent to a $ol!bac+ ,$ic$ means Esomet$ing $el! bac+ or ,it$$el! o(ten tem&oraril'.F Hence t$e Etem&orar'F nat%re o( t$e retention b' t$e national government !oes not matter. #n' retention is &ro$ibite!. *n s%m ,$ile )ection 1 o( #O 17/ ma' be %&$el! as an a!visor' e((ecte! in times o( national crisis )ection 0 t$ereo( $as no color o( vali!it' at all. 2$e latter &rovision e((ectivel' encroac$es on t$e (iscal a%tonom' o( local governments. Conce!e!l' t$e =resi!ent ,as ,ellD intentione! in iss%ing $is Or!er to ,it$$ol! t$e LG@s> *-# b%t t$e r%le o( la, re.%ires t$at even t$e best intentions m%st be carrie! o%t ,it$in t$e &arameters o( t$e Constit%tion an! t$e la,. Keril' la%!able &%r&oses m%st be carrie! o%t b' legal met$o!s. 2$e E9%st s$areF o( t$e LG@s is incor&orate! as t$e *-# in t$e a&&ro&riations la, or G## enacte! b' Congress ann%all'. @n!er t$e assaile! &rovisos in t$e G##s o( 1888 /555 an! /551 a &ortion o( t$e *-# in t$e amo%nt o( (ive billion &esos ,as earmar+e! (or t$e LG)3F an! t$ese &rovisos im&ose! t$e con!ition t$at Es%c$ amo%nt s$all be release! to t$e local government %nits s%b9ect to t$e im&lementing r%les an! reg%lations incl%!ing s%c$ mec$anisms an! g%i!elines (or t$e e.%itable allocations an! !istrib%tion o( sai! (%n! among local government %nits s%b9ect to t$e g%i!elines t$at ma' be &rescribe! b' t$e Oversig$t Committee on Devol%tion.F =%rs%ant t$ereto t$e Oversig$t Committee t$ro%g$ t$e assaile! OCD resol%tions a&&ortione! t$e (ive billion &esos LG)3F. )igni(icantl' t$e LG)3F co%l! not be release! to t$e LG@s ,it$o%t t$e Oversig$t Committee>s &rior a&&roval. F%rt$er ,it$ res&ect to t$e &ortion o( t$e LG)3F allocate! (or vario%s &ro9ects o( t$e LG@s ;=1 billion (or 1888A =1.C billion (or /555 an! =/ billion (or /551< t$e Oversig$t Committee t$ro%g$ t$e assaile! OCD resol%tions lai! !o,n g%i!elines an! mec$anisms t$at t$e LG@s $a! to com&l' ,it$ be(ore t$e' co%l! avail o( (%n!s (rom t$is &ortion o( t$e LG)3F. 2$e g%i!elines re.%ire! ;a< t$e LG@s to i!enti(' t$e &ro9ects eligible (or (%n!ing base! on t$e criteria lai! !o,n b' t$e Oversig$t CommitteeA ;b< t$e LG@s to s%bmit t$eir &ro9ect &ro&osals to t$e D*LG (or a&&raisalA ;c< t$e &ro9ect &ro&osals
15/

t$at &asse! t$e a&&raisal o( t$e D*LG to be s%bmitte! to t$e Oversig$t Committee (or revie, eval%ation an! a&&roval. *t ,as onl' %&on a&&roval t$ereo( t$at t$e Oversig$t Committee ,o%l! !irect t$e DBM to release t$e (%n!s (or t$e &ro9ects. 2o t$e Co%rt>s min! t$e entire &rocess involving t$e !istrib%tion an! release o( t$e LG)3F is constit%tionall' im&ermissible. 2$e LG)3F is &art o( t$e *-# or E9%st s$areF o( t$e LG@s in t$e national ta4es. 2o s%b9ect its !istrib%tion an! release to t$e vagaries o( t$e im&lementing r%les an! reg%lations incl%!ing t$e g%i!elines an! mec$anisms %nilaterall' &rescribe! b' t$e Oversig$t Committee (rom time to time as sanctione! b' t$e assaile! &rovisos in t$e G##s o( 1888 /555 an! /551 an! t$e OCD resol%tions ma+es t$e release not a%tomatic a (lagrant violation o( t$e constit%tional an! stat%tor' man!ate t$at t$e E9%st s$areF o( t$e LG@s Es$all be a%tomaticall' release! to t$em.F 2$e LG@s are t$%s &lace! at t$e merc' o( t$e Oversig$t Committee. 6$ere t$e la, t$e Constit%tion in t$is case is clear an! %nambig%o%s it m%st be ta+en to mean e4actl' ,$at it sa's an! co%rts $ave no c$oice b%t to see to it t$at t$e man!ate is obe'e!. Moreover as correctl' &osite! b' t$e &etitioner t$e %se o( t$e ,or! Es$allF connotes a man!ator' or!er. *ts %se in a stat%te !enotes an im&erative obligation an! is inconsistent ,it$ t$e i!ea o( !iscretion. *n!ee! t$e Oversig$t Committee e4ercising !iscretion even control over t$e !istrib%tion an! release o( a &ortion o( t$e *-# t$e LG)3F is an anat$ema to an! s%bversive o( t$e &rinci&le o( local a%tonom' as embo!ie! in t$e Constit%tion. Moreover it (in!s no stat%tor' basis at all as t$e Oversig$t Committee ,as create! merel' to (orm%late t$e r%les an! reg%lations (or t$e e((icient an! e((ective im&lementation o( t$e Local Government Co!e o( 1881 to ens%re Ecom&liance ,it$ t$e &rinci&les o( local a%tonom' as !e(ine! %n!er t$e Constit%tion.FU/8V *n (act its creation ,as &lace! %n!er t$e title o( E2ransitor' =rovisions F signi('ing its a! $oc c$aracter. #ccor!ing to )enator #.%ilino W. =imentel t$e &rinci&al a%t$or an! s&onsor o( t$e bill t$at event%all' became -e&. #ct No. 71G5 t$e Committee>s ,or+ ,as s%&&ose! to be !one a 'ear (rom t$e a&&roval o( t$e Co!e or on October 15 188/.U15V 2$e Oversig$t Committee>s a%t$orit' is %n!o%bte!l' limite! to t$e im&lementation o( t$e Local Government Co!e o( 1881 not to s%&&lant or s%bvert t$e same. Neit$er can it e4ercise control over t$e *-# or even a &ortion t$ereo( o( t$e LG@s. 2$at t$e a%tomatic release o( t$e *-# ,as &recisel' inten!e! to g%arantee an! &romote local a%tonom' can be gleane! (rom t$e !isc%ssion bet,een Messrs. 7ose N. Nolle!o an! -egala!o M. Maambong t$en members o( t$e 188G Constit%tional Commission. 2$e conce&t o( local a%tonom' ,as e4&laine! in GanBon v. Co%rt o( #&&eals in t$is ,ise: #s t$e Constit%tion itsel( !eclares local a%tonom' ]means a more res&onsive an! acco%ntable local government str%ct%re instit%te! t$ro%g$ a s'stem o( !ecentraliBation.> 2$e Constit%tion as ,e observe! !oes not$ing more t$an to brea+ %& t$e mono&ol' o( t$e national government over t$e a((airs o( local governments an! as &%t b' &olitical a!$erents to Eliberate t$e local governments (rom t$e im&erialism o( Manila.F #%tonom' $o,ever is not meant to en! t$e relation o( &artners$i& an! inter!e&en!ence bet,een t$e central a!ministration an! local government %nits or ot$er,ise to %s$er in a regime o( (e!eralism. 2$e C$arter $as not ta+en s%c$ a ra!ical ste&. Local governments %n!er t$e Constit%tion are s%b9ect to reg%lation $o,ever limite! an! (or no ot$er &%r&ose t$an &recisel' albeit &ara!o4icall' to en$ance sel(Dgovernment. #s ,e observe! in one case !ecentraliBation means !evol%tion o( national a!ministration X b%t not &o,er X to t$e local levels. 2$%s: No, a%tonom' is eit$er !ecentraliBation o( a!ministration or !ecentraliBation o( &o,er. 2$ere is !ecentraliBation o( a!ministration ,$en t$e central government !elegates a!ministrative &o,ers to &olitical s%b!ivisions in or!er to broa!en t$e base o( government &o,er an! in t$e &rocess to ma+e local governments ]more res&onsive an! acco%ntable> an! ]ens%re t$eir (%llest !evelo&ment as sel(Dreliant comm%nities an! ma+e t$em more e((ective &artners in t$e &%rs%it o( national !evelo&ment an! social &rogress.> #t t$e same time it relieves t$e central government o( t$e b%r!en o( managing local a((airs an! enables it to concentrate on national concerns. 2$e =resi!ent e4ercises ]general s%&ervision> over t$em b%t onl' to ]ens%re t$at local a((airs
151

are a!ministere! accor!ing to la,.> He $as no control over t$eir acts in t$e sense t$at $e can s%bstit%te t$eir 9%!gments ,it$ $is o,n. DecentraliBation o( &o,er on t$e ot$er $an! involves an ab!ication o( &olitical &o,er in t$e UsicV (avor o( local governments UsicV %nits !eclare! to be a%tonomo%s. *n t$at case t$e a%tonomo%s government is (ree to c$art its o,n !estin' an! s$a&e its (%t%re ,it$ minim%m intervention (rom central a%t$orities. #ccor!ing to a constit%tional a%t$or !ecentraliBation o( &o,er amo%nts to ]sel(D immolation > since in t$at event t$e a%tonomo%s government becomes acco%ntable not to t$e central a%t$orities b%t to its constit%enc'. Local a%tonom' incl%!es bot$ a!ministrative an! (iscal a%tonom'. 2$e (airl' recent case o( =imentel v. #g%irreU1CV is &artic%larl' instr%ctive. 2$e Co%rt !eclare! t$erein t$at local (iscal a%tonom' incl%!es t$e &o,er o( t$e LG@s to inter alia allocate t$eir reso%rces in accor!ance ,it$ t$eir o,n &riorities: @n!er e4isting la, local government %nits in a!!ition to $aving a!ministrative a%tonom' in t$e e4ercise o( t$eir (%nctions en9o' (iscal a%tonom' as ,ell. Fiscal a%tonom' means t$at local governments $ave t$e &o,er to create t$eir o,n so%rces o( reven%e in a!!ition to t$eir e.%itable s$are in t$e national ta4es release! b' t$e national government as ,ell as t$e &o,er to allocate t$eir reso%rces in accor!ance ,it$ t$eir o,n &riorities. *t e4ten!s to t$e &re&aration o( t$eir b%!gets an! local o((icials in t%rn $ave to ,or+ ,it$in t$e constraints t$ereo(. 2$e' are not (orm%late! at t$e national level an! im&ose! on local governments ,$et$er t$e' are relevant to local nee!s an! reso%rces or not. F%rt$er a basic (eat%re o( local (iscal a%tonom' is t$e constit%tionall' man!ate! a%tomatic release o( t$e s$ares o( LG@s in t$e national internal reven%e. Follo,ing t$is ratiocination t$e Co%rt in =imentel str%c+ !o,n as %nconstit%tional )ection 0 o( #!ministrative Or!er ;#.O.< No. 17/ ,$ic$ or!ere! t$e ,it$$ol!ing e((ective 7an%ar' 1 1888 o( ten &ercent o( t$e LG@s> *-# E&en!ing t$e assessment an! eval%ation b' t$e Develo&ment B%!get Coor!inating Committee o( t$e emerging (iscal sit%ation.F *n li+e manner t$e assaile! &rovisos in t$e G##s o( 1888 /555 an! /551 an! t$e OCD resol%tions constit%te a E,it$$ol!ingF o( a &ortion o( t$e *-#. 2$e' &%t on $ol! t$e !istrib%tion an! release o( t$e (ive billion &esos LG)3F an! s%b9ect t$e same to t$e im&lementing r%les an! reg%lations incl%!ing t$e g%i!elines an! mec$anisms &rescribe! b' t$e Oversig$t Committee (rom time to time. Li+e )ection 0 o( #.O. 17/ t$e assaile! &rovisos in t$e G##s o( 1888 /555 an! /551 an! t$e OCD resol%tions e((ectivel' encroac$ on t$e (iscal a%tonom' en9o'e! b' t$e LG@s an! m%st be str%c+ !o,n. 2$e' cannot t$ere(ore be %&$el!. 2$e assaile! &rovisos in t$e G##s o( 1888 /555 an! /551 an! t$e OCD resol%tions cannot amen! )ection /8C o( t$e Local Government Co!e o( 1881 )ection /80 o( t$e Local Government Co!e &rovi!es t$at beginning t$e t$ir! 'ear o( its e((ectivit' t$e LG@s> s$are in t$e national internal reven%e ta4es s$all be 05Y. 2$is &ercentage is (i4e! an! ma' not be re!%ce! e4ce&t Ein t$e event t$e national government inc%rs an %nmanageable &%blic sector !e(icit" an! onl' %&on com&liance ,it$ stringent re.%irements set (ort$ in t$e same section: )ec. /80. =rovi!e! 2$at in t$e event t$at t$e national government inc%rs an %nmanageable &%blic sector !e(icit t$e =resi!ent o( t$e =$ili&&ines is $ereb' a%t$oriBe! %&on recommen!ation o( )ecretar' o( Finance )ecretar' o( *nterior an! Local Government an! )ecretar' o( B%!get an! Management an! s%b9ect to cons%ltation ,it$ t$e &resi!ing o((icers o( bot$ Ho%ses o( Congress an! t$e &resi!ents o( t$e liga to ma+e t$e necessar' a!9%stments in t$e internal reven%e allotment o( local government %nits b%t in no case s$all t$e allotment be less t$an t$irt' &ercent ;15Y< o( t$e collection o( t$e national internal reven%e ta4es o( t$e t$ir! (iscal 'ear &rece!ing t$e c%rrent (iscal 'earA =rovi!e! (%rt$er 2$at in t$e (irst 'ear o( t$e e((ectivit' o( t$is Co!e t$e local government %nits s$all in a!!ition to t$e t$irt' &ercent ;15Y< internal reven%e allotment ,$ic$ s$all incl%!e t$e cost o( !evolve! (%nctions (or essential &%blic services be entitle! to receive t$e amo%nt e.%ivalent to t$e cost o( !evolve! &ersonnel services. 2$%s (rom t$e above &rovision t$e onl' &ossible e4ce&tion to t$e man!ator' a%tomatic release o( t$e LG@s> *-# is i( t$e national internal reven%e collections (or t$e c%rrent (iscal 'ear is less t$an 05 &ercent o( t$e collections o( t$e &rece!ing t$ir! (iscal 'ear in ,$ic$ case ,$at s$o%l! be
150

a%tomaticall' release! s$all be a &ro&ortionate amo%nt o( t$e collections (or t$e c%rrent (iscal 'ear. 2$e a!9%stment ma' even be ma!e on a .%arterl' basis !e&en!ing on t$e act%al collections o( national internal reven%e ta4es (or t$e .%arter o( t$e c%rrent (iscal 'ear. *n t$e instant case $o,ever t$ere is no allegation t$at t$e national internal reven%e ta4 collections (or t$e (iscal 'ears 1888 /555 an! /551 $ave (allen com&are! to t$e &rece!ing t$ree (iscal 'ears. )ection /8C t$en s&eci(ies $o, t$e *-# s$all be allocate! among t$e LG@s. Ho,ever t$is &ercentage s$aring is not (ollo,e! ,it$ res&ect to t$e (ive billion &esos LG)3F as t$e assaile! OCD resol%tions im&lementing t$e assaile! &rovisos in t$e G##s o( 1888 /555 an! /551 &rovi!e! (or a !i((erent s$aring sc$eme. For e4am&le (or 1888 =/ billion o( t$e LG)3F ,as allocate! as (ollo,s: =rovinces X 05YA Cities X /5YA M%nici&alities X 05Y.U18V For /555 =1.C billion o( t$e LG)3F ,as allocate! in t$is manner: =rovinces X /GYA Cities X /1YA M%nici&alities X 1CYA Baranga's X /GY.U05V For /551 =1 billion o( t$e LG)3F ,as allocate! t$%s: =rovinces X /CYA Cities X /CYA M%nici&alities X 1CYA Baranga's X 1CY.U01V 2$e res&on!ents arg%e t$at t$is mo!i(ication is allo,e! since t$e Constit%tion !oes not s&eci(' t$at t$e E9%st s$areF o( t$e LG@s s$all onl' be !etermine! b' t$e Local Government Co!e o( 1881. 2$at it is ,it$in t$e &o,er o( Congress to enact ot$er la,s incl%!ing t$e G##s to increase or !ecrease t$e E9%st s$areF o( t$e LG@s. 2$is contention is %ntenable. 2$e Local Government Co!e o( 1881 is a s%bstantive la,. #n! ,$ile it is conce!e! t$at Congress ma' amen! an' o( t$e &rovisions t$erein it ma' not !o so t$ro%g$ a&&ro&riations la,s or G##s. #n' amen!ment to t$e Local Government Co!e o( 1881 s$o%l! be !one in a se&arate la, not in t$e a&&ro&riations la, beca%se Congress cannot incl%!e in a general a&&ro&riation bill matters t$at s$o%l! be more &ro&erl' enacte! in a se&arate legislation. # general a&&ro&riations bill is a s&ecial t'&e o( legislation ,$ose content is limite! to s&eci(ie! s%ms o( mone' !e!icate! to a s&eci(ic &%r&ose or a se&arate (iscal %nit.U01V #n' &rovision t$erein ,$ic$ is inten!e! to amen! anot$er la, is consi!ere! an Eina&&ro&riate &rovision.F 2$e categor' o( Eina&&ro&riate &rovisionsF incl%!es %nconstit%tional &rovisions an! &rovisions ,$ic$ are inten!e! to amen! ot$er la,s beca%se clearl' t$ese +in!s o( la,s $ave no &lace in an a&&ro&riations bill. *ncreasing or !ecreasing t$e *-# o( t$e LG@s or mo!i('ing t$eir &ercentage s$aring t$erein ,$ic$ are (i4e! in t$e Local Government Co!e o( 1881 are matters o( general an! s%bstantive la,. 2o &ermit Congress to %n!erta+e t$ese amen!ments t$ro%g$ t$e G##s as t$e res&on!ents conten! ,o%l! be to give Congress t$e %nbri!le! a%t$orit' to %n!%l' in(ringe t$e (iscal a%tonom' o( t$e LG@s an! t$%s &%t t$e same in 9eo&ar!' ever' 'ear. 2$is t$e Co%rt cannot sanction. *t is relevant to &oint o%t at t$is 9%nct%re t$at %nli+e t$ose o( 1888 /555 an! /551 t$e G##s o( /55/ an! /551 !o not contain &rovisos similar to t$e $erein assaile! &rovisos. *n ot$er ,or!s t$e G##s o( /55/ an! /551 $ave not earmar+e! an' amo%nt o( t$e *-# (or t$e LG)3F. Congress $a! &er$a&s seen (it to !iscontin%e t$e &ractice as it recogniBes its in(irmit'. Nonet$eless as earlier mentione! t$is Co%rt $as !eeme! it necessar' to ma+e a !e(initive r%ling on t$e matter in or!er to &revent its rec%rrence in (%t%re a&&ro&riations la,s an! t$at t$e &rinci&les en%nciate! $erein ,o%l! serve to g%i!e t$e benc$ bar an! &%blic. &eliciano v. COA Facts: # )&ecial #%!it 2eam (rom CO# -egional O((ice No. K*** a%!ite! t$e acco%nts o( LM6D. )%bse.%entl' LM6D receive! a letter (rom CO# !ate! 18 7%l' 1888 re.%esting &a'ment o( a%!iting (ees. #s General Manager o( LM6D &etitioner sent a re&l' !ate! 1/ October 1888 in(orming CO#>s -egional Director t$at t$e ,ater !istrict co%l! not &a' t$e a%!iting (ees. =etitioner cite! as basis (or $is action )ections G an! /5 o( =resi!ential Decree 188 ;E=D 188F< U/V as ,ell as )ection 18 o( -e&%blic #ct No. G7C8 ;E-# G7C8F<. 2$e -egional Director re(erre! &etitioner>s re&l' to t$e CO# C$airman on 18 October 1888. On 18 October 1888 &etitioner ,rote CO# t$ro%g$ t$e -egional Director as+ing (or re(%n! o( all a%!iting (ees LM6D &revio%sl' &ai! to CO#. On 1G Marc$ /555 &etitioner receive! CO# C$airman Celso D. Gangan>s -esol%tion !ate! 1 7an%ar' /555 !en'ing $is re.%ests. =etitioner (ile! a
15C

motion (or reconsi!eration on 11 Marc$ /555 ,$ic$ CO# !enie! on 15 7an%ar' /551. On 11 Marc$ /551 &etitioner (ile! t$is instant &etition. #ttac$e! to t$e &etition ,ere resol%tions o( t$e Kisa'as #ssociation o( 6ater Districts ;K#6D< an! t$e =$ili&&ine #ssociation o( 6ater Districts ;=#6D< s%&&orting t$e &etition. *ss%e: 1. 6ON CO# $as t$e a%t$orit' to a%!it LM6D. 2$e Constit%tion an! e4isting la,sU0V man!ate CO# to a%!it all government agencies incl%!ing governmentDo,ne! an! controlle! cor&orations ;EGOCCsF< ,it$ original c$arters. #n L6D is a GOCC ,it$ an original c$arter. )ection /;1< #rticle *JDD o( t$e Constit%tion &rovi!es (or CO#>s a%!it 9%ris!iction as (ollo,s: )3C2*ON /. ;1< 2$e Commission on #%!it s$all $ave t$e &o,er a%t$orit' an! !%t' to e4amine a%!it an! settle all acco%nts &ertaining to t$e reven%e an! recei&ts o( an! e4&en!it%res or %ses o( (%n!s an! &ro&ert' o,ne! or $el! in tr%st b' or &ertaining to t$e Government or an' o( its s%b!ivisions agencies or instr%mentalities incl%!ing governmentDo,ne! an! controlle! cor&orations ,it$ original c$arters an! on a &ostDa%!it basis: ;a< constit%tional bo!ies commissions an! o((ices t$at $ave been grante! (iscal a%tonom' %n!er t$is Constit%tionA ;b< a%tonomo%s state colleges an! %niversitiesA ;c< ot$er governmentDo,ne! or controlle! cor&orations an! t$eir s%bsi!iariesA an! ;!< s%c$ nonDgovernmental entities receiving s%bsi!' or e.%it' !irectl' or in!irectl' (rom or t$ro%g$ t$e government ,$ic$ are re.%ire! b' la, or t$e granting instit%tion to s%bmit to s%c$ a%!it as a con!ition o( s%bsi!' or e.%it'. Ho,ever ,$ere t$e internal control s'stem o( t$e a%!ite! agencies is ina!e.%ate t$e Commission ma' a!o&t s%c$ meas%res incl%!ing tem&orar' or s&ecial &reDa%!it as are necessar' an! a&&ro&riate to correct t$e !e(iciencies. *t s$all +ee& t$e general acco%nts o( t$e Government an! (or s%c$ &erio! as ma' be &rovi!e! b' la, &reserve t$e vo%c$ers an! ot$er s%&&orting &a&ers &ertaining t$ereto. 2$e CO#>s a%!it 9%ris!iction e4ten!s not onl' to government Eagencies or instr%mentalities F b%t also to EgovernmentD o,ne! an! controlle! cor&orations ,it$ original c$artersF as ,ell as Eot$er governmentDo,ne! or controlle! cor&orationsF ,it$o%t original c$arters. /. 6ON L6Ds are GOCCs ,it$ original c$arters.
L6Ds are not &rivate cor&orations beca%se t$e' are not

create! %n!er t$e Cor&oration Co!e. L6Ds are not registere! ,it$ t$e )ec%rities an! 34c$ange Commission. )ection 10 o( t$e Cor&oration Co!e states t$at EU#Vll cor&orations organiBe! %n!er t$is co!e s$all (ile ,it$ t$e )ec%rities an! 34c$ange Commission articles o( incor&oration 4 4 4.F L6Ds $ave no articles o( incor&oration no incor&orators an! no stoc+$ol!ers or members. 2$ere are no stoc+$ol!ers or members to elect t$e boar! !irectors o( L6Ds as in t$e case o( all cor&orations registere! ,it$ t$e )ec%rities an! 34c$ange Commission. 2$e local ma'or or t$e &rovincial governor a&&oints t$e !irectors o( L6Ds (or a (i4e! term o( o((ice. 2$is Co%rt $as r%le! t$at L6Ds are not create! %n!er t$e Cor&oration Co!e t$%s: From t$e (oregoing &rono%ncement it is clear t$at ,$at $as been e4cl%!e! (rom t$e coverage o( t$e C)C are t$ose cor&orations create! &%rs%ant to t$e Cor&oration Co!e. )igni(icantl' &etitioners are not create! %n!er t$e sai! co!e b%t on t$e contrar' t$e' ,ere create! &%rs%ant to a s&ecial la, an! are governe! &rimaril' b' its &rovision. L6Ds e4ist b' virt%e o( =D 188 ,$ic$ constit%tes t$eir s&ecial c$arter. )ince %n!er t$e Constit%tion onl' governmentDo,ne! or controlle! cor&orations ma' $ave s&ecial c$arters L6Ds can vali!l' e4ist onl' i( t$e' are governmentDo,ne! or controlle!. 2o claim t$at L6Ds are &rivate cor&orations ,it$ a s&ecial c$arter is to a!mit t$at t$eir e4istence is constit%tionall' in(irm. @nli+e &rivate cor&orations ,$ic$ !erive t$eir legal e4istence an! &o,er (rom t$e Cor&oration Co!e L6Ds !erive t$eir legal e4istence an! &o,er (rom =D 188 ,$ic$ e4&ressl' con(ers on L6Ds cor&orate &o,ers. )ection G o( =D 188 &rovi!es t$at L6Ds Es$all e4ercise t$e &o,ers rig$ts an! &rivileges given to &rivate cor&orations %n!er e4isting la,s.F 6it$o%t =D 188 L6Ds ,o%l! $ave no cor&orate &o,ers. 2$%s =D 188 constit%tes t$e s&ecial enabling c$arter o( L6Ds. 2$e inel%ctable concl%sion is t$at L6Ds are governmentDo,ne! an! controlle! cor&orations ,it$ a s&ecial c$arter. 2$e &$rase EgovernmentDo,ne! an! controlle! cor&orations ,it$ original c$artersF means GOCCs create! %n!er s&ecial la,s an! not %n!er t$e general incor&oration la,. 2$ere is
15G

no !i((erence bet,een t$e term Eoriginal c$artersF an! Es&ecial c$arters.F =etitioner>s contention t$at t$e )angg%niang Ba'an resol%tion creates t$e L6Ds ass%mes t$at t$e )angg%niang Ba'an $as t$e &o,er to create cor&orations. 2$is is a &atentl' baseless ass%m&tion. 2$e Local Government Co!eU17V !oes not vest in t$e )angg%niang Ba'an t$e &o,er to create cor&orations.U18V 6$at t$e Local Government Co!e em&o,ers t$e )angg%niang Ba'an to !o is to &rovi!e (or t$e establis$ment o( a ,ater,or+s s'stem Es%b9ect to e4isting la,s.F 2$%s )ection 007;C<;vii< o( t$e Local Government Co!e &rovi!es: )3C2*ON 007. =o,ers D%ties F%nctions an! Com&ensation. S ;a< 2$e sangg%niang ba'an as t$e legislative bo!' o( t$e m%nici&alit' s$all enact or!inances a&&rove resol%tions an! a&&ro&riate (%n!s (or t$e general ,el(are o( t$e m%nici&alit' an! its in$abitants &%rs%ant to )ection 1G o( t$is Co!e an! in t$e &ro&er e4ercise o( t$e cor&orate &o,ers o( t$e m%nici&alit' as &rovi!e! (or %n!er )ection // o( t$is Co!e an! s$all: ;vii< )%b9ect to e4isting la,s &rovi!e (or t$e establis$ment o&eration maintenance an! re&air o( an e((icient ,ater,or+s s'stem to s%&&l' ,ater (or t$e in$abitantsA reg%late t$e constr%ction maintenance re&air an! %se o( $'!rants &%m&s cisterns an! reservoirsA &rotect t$e &%rit' an! .%antit' o( t$e ,ater s%&&l' o( t$e m%nici&alit' an! (or t$is &%r&ose e4ten! t$e coverage o( a&&ro&riate or!inances over all territor' ,it$in t$e !rainage area o( sai! ,ater s%&&l' an! ,it$in one $%n!re! ;155< meters o( t$e reservoir con!%it canal a.%e!%ct &%m&ing station or ,aters$e! %se! in connection ,it$ t$e ,ater serviceA an! reg%late t$e cons%m&tion %se or ,astage o( ,aterA 2$e )angg%niang Ba'an ma' establis$ a ,ater,or+s s'stem onl' in accor!ance ,it$ t$e &rovisions o( =D 188. 2$e )angg%niang Ba'an $as no &o,er to create a cor&orate entit' t$at ,ill o&erate its ,ater,or+s s'stem. Ho,ever t$e )angg%niang Ba'an ma' avail o( e4isting enabling la,s li+e =D 188 to (orm an! incor&orate a ,ater !istrict. Besi!es even ass%ming (or t$e sa+e o( arg%ment t$at t$e )angg%niang Ba'an $as t$e &o,er to create cor&orations t$e L6Ds ,o%l! remain governmentDo,ne! or controlle! cor&orations s%b9ect to CO#>s a%!it 9%ris!iction. 2$e resol%tion o( t$e )angg%niang Ba'an ,o%l! constit%te an L6D>s s&ecial c$arter ma+ing t$e L6D a governmentD o,ne! an! controlle! cor&oration ,it$ an original c$arter. *n an' event t$e Co%rt $as alrea!' r%le! in Bag%io 6ater District v. 2ra9anoU18V t$at t$e )angg%niang Ba'an resol%tion is not t$e s&ecial c$arter o( L6Ds t$%s: 6$ile it is tr%e t$at a resol%tion o( a local sangg%nian is still necessar' (or t$e (inal creation o( a !istrict t$is Co%rt is o( t$e o&inion t$at sai! resol%tion cannot be consi!ere! as its c$arter t$e same being inten!e! onl' to im&lement t$e &rovisions o( sai! !ecree. =etitioner (%rt$er conten!s t$at a la, m%st create !irectl' an! e4&licitl' a GOCC in or!er t$at it ma' $ave an original c$arter. *n s$ort &etitioner arg%es t$at one s&ecial la, cannot serve as enabling la, (or several GOCCs b%t onl' (or one GOCC. )ection 1G #rticle J** o( t$e Constit%tion man!ates t$at ECongress s$all not e4ce&t b' general la, FU/5V &rovi!e (or t$e creation o( &rivate cor&orations. 2$%s t$e Constit%tion &ro$ibits one s&ecial la, to create one &rivate cor&oration re.%iring instea! a Egeneral la,F to create &rivate cor&orations. *n contrast t$e same )ection 1G states t$at EGovernmentDo,ne! or controlle! cor&orations ma' be create! or establis$e! b' s&ecial c$arters.F 2$%s t$e Constit%tion &ermits Congress to create a GOCC ,it$ a s&ecial c$arter. 2$ere is $o,ever no &ro$ibition on Congress to create several GOCCs o( t$e same class %n!er one s&ecial enabling c$arter. 2$e rationale be$in! t$e &ro$ibition on &rivate cor&orations $aving s&ecial c$arters !oes not a&&l' to GOCCs. 2$ere is no !anger o( creating s&ecial &rivileges to certain in!ivi!%als (amilies or gro%&s i( t$ere is one s&ecial la, creating eac$ GOCC. Certainl' s%c$ !anger ,ill not e4ist ,$et$er one s&ecial la, creates one GOCC or one s&ecial enabling la, creates several GOCCs. 2$%s Congress ma' create GOCCs eit$er b' s&ecial c$arters s&eci(ic to eac$ GOCC or b' one s&ecial enabling c$arter a&&licable to a class o( GOCCs li+e =D 188 ,$ic$ a&&lies onl' to L6Ds. =etitioner also conten!s t$at L6Ds are &rivate cor&orations beca%se )ection G o( =D 188U/1V !eclares t$at L6Ds Es$all be consi!ere! .%asiD&%blicF in nat%re. =etitioner>s rationale is t$at onl' &rivate cor&orations ma' be !eeme! E.%asiD &%blicF an! not &%blic cor&orations. =%t !i((erentl'
157

&etitioner rationaliBes t$at a &%blic cor&oration cannot be !eeme! E.%asiD&%blicF beca%se s%c$ cor&oration is alrea!' &%blic. =etitioner concl%!es t$at t$e term E.%asiD&%blicF can onl' a&&l' to &rivate cor&orations. =etitioner>s arg%ment is inconse.%ential. =etitioner (orgets t$at t$e constit%tional criterion on t$e e4ercise o( CO#>s a%!it 9%ris!iction !e&en!s on t$e government>s o,ners$i& or control o( a cor&oration. 2$e nat%re o( t$e cor&oration ,$et$er it is &rivate .%asiD&%blic or &%blic is immaterial. 2$e Constit%tion vests in t$e CO# a%!it 9%ris!iction over EgovernmentDo,ne! an! controlle! cor&orations ,it$ original c$arters F as ,ell as EgovernmentDo,ne! or controlle! cor&orationsF ,it$o%t original c$arters. GOCCs ,it$ original c$arters are s%b9ect to CO# &reDa%!it ,$ile GOCCs ,it$o%t original c$arters are s%b9ect to CO# &ostD a%!it. GOCCs ,it$o%t original c$arters re(er to cor&orations create! %n!er t$e Cor&oration Co!e b%t are o,ne! or controlle! b' t$e government. 2$e nat%re or &%r&ose o( t$e cor&oration is not material in !etermining CO#>s a%!it 9%ris!iction. Neit$er is t$e manner o( creation o( a cor&oration ,$et$er %n!er a general or s&ecial la,. 2$e !etermining (actor o( CO#>s a%!it 9%ris!iction is government o,ners$i& or control o( t$e cor&oration. *n =$ili&&ine Keterans Ban+ 3m&lo'ees @nionDN@B3 v. =$ili&&ine Keterans Ban+ U//V t$e Co%rt even r%le! t$at t$e criterion o( o,ners$i& an! control is more im&ortant t$an t$e iss%e o( original c$arter t$%s: 2$is &oint is im&ortant beca%se t$e Constit%tion &rovi!es in its #rticle *JDB )ection /;1< t$at Et$e Civil )ervice embraces all branc$es s%b!ivisions instr%mentalities an! agencies o( t$e Government incl%!ing governmentDo,ne! or controlle! cor&orations ,it$ original c$arters.F #s t$e Ban+ is not o,ne! or controlle! b' t$e Government alt$o%g$ it !oes $ave an original c$arter in t$e (orm o( -.#. No. 1C18 U/1V it clearl' !oes not (all %n!er t$e Civil )ervice an! s$o%l! be regar!e! as an or!inar' commercial cor&oration. )ection /8 o( t$e sai! la, so &rovi!es. 2$e conse.%ence is t$at t$e relations o( t$e Ban+ ,it$ its em&lo'ees s$o%l! be governe! b' t$e labor la,s %n!er ,$ic$ in (act t$e' $ave alrea!' been &ai! some o( t$eir claims.
Certainl' t$e government o,ns an! controls L6Ds. 2$e

government organiBes L6Ds in accor!ance ,it$ a s&eci(ic la, =D 188. 2$ere is no &rivate &art' involve! as coDo,ner in t$e creation o( an L6D. 7%st &rior to t$e creation o( L6Ds t$e national or local government o,ns an! controls all t$eir assets. 2$e government controls L6Ds beca%se %n!er =D 188 t$e m%nici&al or cit' ma'or or t$e &rovincial governor a&&oints all t$e boar! !irectors o( an L6D (or a (i4e! term o( si4 'ears.U/0V 2$e boar! !irectors o( L6Ds are not coDo,ners o( t$e L6Ds. L6Ds $ave no &rivate stoc+$ol!ers or members. 2$e boar! !irectors an! ot$er &ersonnel o( L6Ds are government em&lo'ees s%b9ect to civil service la,sU/CV an! antiDgra(t la,s. 6$ile )ection 8 o( =D 188 states t$at EUNVo &%blic o((icial s$all serve as !irectorF o( an L6D it onl' means t$at t$e a&&ointees to t$e boar! o( !irectors o( L6Ds s$all come (rom t$e &rivate sector. Once s%c$ &rivate sector re&resentatives ass%me o((ice as !irectors t$e' become &%blic o((icials governe! b' t$e civil service la, an! antiD gra(t la,s. Ot$er,ise )ection 8 o( =D 188 ,o%l! contravene )ection /;1< #rticle *JDB o( t$e Constit%tion !eclaring t$at t$e civil service incl%!es EgovernmentDo,ne! or controlle! cor&orations ,it$ original c$arters.F *( L6Ds are neit$er GOCCs ,it$ original c$arters nor GOCCs ,it$o%t original c$arters t$en t$e' ,o%l! (all %n!er t$e term Eagencies or instr%mentalitiesF o( t$e government an! t$%s still s%b9ect to CO#>s a%!it 9%ris!iction. Ho,ever t$e star+ an! %n!eniable (act is t$at t$e government o,ns L6Ds. )ection 0CU/7V o( =D 188 recogniBes government o,ners$i& o( L6Ds ,$en )ection 0C states t$at t$e boar! o( !irectors ma' !issolve an L6D onl' on t$e con!ition t$at Eanot$er &%blic entit' $as ac.%ire! t$e assets o( t$e !istrict an! $as ass%me! all obligations an! liabilities attac$e! t$ereto.F 2$e im&lication is clear t$at an L6D is a &%blic an! not a &rivate entit'. =etitioner !oes not allege t$at some entit' ot$er t$an t$e government o,ns or controls L6Ds. *nstea! &etitioner a!vances t$e t$eor' t$at t$e E6ater District>s o,ner is t$e District itsel(.FU/8V #ss%ming (or t$e sa+e o( arg%ment t$at an L6D is Esel(Do,ne! FU/8V as &etitioner !escribes an L6D t$e government in an' event controls all L6Ds. First government o((icials a&&oint all L6D !irectors to a (i4e!
158

term o( o((ice. )econ! an' &er !iem o( L6D !irectors in e4cess o( =C5 is s%b9ect to t$e a&&roval o( t$e Local 6ater @tilities #!ministration an! !irectors can receive no ot$er com&ensation (or t$eir services to t$e L6D.U15V 2$ir! t$e Local 6ater @tilities #!ministration can re.%ire L6Ds to merge or consoli!ate t$eir (acilities or o&erations.U11V 2$is element o( government control s%b9ects L6Ds to CO#>s a%!it 9%ris!iction. =etitioner arg%es t$at %&on t$e enactment o( =D 188 L6Ds became &rivate entities t$ro%g$ t$e trans(er o( o,ners$i& o( ,ater (acilities (rom local government %nits to t$eir res&ective ,ater !istricts as man!ate! b' =D 188. =etitioner is gras&ing at stra,s. =rivatiBation involves t$e trans(er o( government assets to a &rivate entit'. =etitioner conce!es t$at t$e o,ner o( t$e assets trans(erre! %n!er )ection G ;c< o( =D 188 is no ot$er t$an t$e L6D itsel(.U1/V 2$e trans(er o( assets man!ate! b' =D 188 is a trans(er o( t$e ,ater s'stems (acilities Emanage! o&erate! b' or %n!er t$e control o( s%c$ cit' m%nici&alit' or &rovince to s%c$ ;,ater< !istrict.FU11V *n s$ort t$e trans(er is (rom one government entit' to anot$er government entit'. =D 188 is bere(t o( an' in!ication t$at t$e trans(er is to &rivatiBe t$e o&eration an! control o( ,ater s'stems. Finall' &etitioner claims t$at even on t$e ass%m&tion t$at t$e government o,ns an! controls L6Ds )ection /5 o( =D 188 &revents CO# (rom a%!iting L6Ds. U10V )ection /5 o( =D 188 &rovi!es: )ec. /5. )'stem o( B%siness #!ministration. S 2$e Boar! s$all as soon as &racticable &rescribe an! !e(ine b' resol%tion a s'stem o( b%siness a!ministration an! acco%nting (or t$e !istrict ,$ic$ s$all be &atterne! %&on an! con(orm to t$e stan!ar!s establis$e! b' t$e #!ministration. #%!iting s$all be &er(orme! b' a certi(ie! &%blic acco%ntant not in t$e government service. 2$e #!ministration ma' $o,ever con!%ct ann%al a%!its o( t$e (iscal o&erations o( t$e !istrict to be &er(orme! b' an a%!itor retaine! b' t$e #!ministration. 34&enses inc%rre! in connection t$ere,it$ s$all be borne e.%all' b' t$e ,ater !istrict concerne! an! t$e #!ministration. =etitioner arg%es t$at =D 188 e4&ressl' &ro$ibits CO# a%!itors or an' government a%!itor (or t$at matter (rom a%!iting L6Ds. =etitioner asserts t$at t$is is t$e im&ort o( t$e secon! sentence o( )ection /5 o( =D 188 ,$en it states t$at EU#V%!iting s$all be &er(orme! b' a certi(ie! &%blic acco%ntant not in t$e government service.F =D 188 cannot &revail over t$e Constit%tion. No amo%nt o( clever legislation can e4cl%!e GOCCs li+e L6Ds (rom CO#>s a%!it 9%ris!iction. )ection 1 #rticle *JDC o( t$e Constit%tion o%tla,s an' sc$eme or !evise to esca&e CO#>s a%!it 9%ris!iction t$%s: )ec. 1. No la, s$all be &asse! e4em&ting an' entit' o( t$e Government or its s%bsi!iar' in an' g%ise ,$atever or an' investment o( &%blic (%n!s (rom t$e 9%ris!iction o( t$e Commission on #%!it. 2$e (ramers o( t$e Constit%tion a!!e! )ection 1 #rticle *JDD o( t$e Constit%tion &recisel' to ann%l &rovisions o( =resi!ential Decrees li+e t$at o( )ection /5 o( =D 188 t$at e4em&t GOCCs (rom CO# a%!it. 2$ere is an irreconcilable con(lict bet,een t$e secon! sentence o( )ection /5 o( =D 188 &ro$ibiting CO# a%!itors (rom a%!iting L6Ds an! )ections /;1< an! 1 #rticle *JDD o( t$e Constit%tion vesting in CO# t$e &o,er to a%!it all GOCCs. 6e r%le t$at t$e secon! sentence o( )ection /5 o( =D 188 is %nconstit%tional since it violates )ections /;1< an! 1 #rticle *JDD o( t$e Constit%tion. 6ON t$e CO# ma' &ro&erl' c$arge a%!iting (ees. )ection 18 o( -# G7C8 &ro$ibits CO# &ersonnel (rom receiving an' +in! o( com&ensation (rom an' government entit' e4ce&t Ecom&ensation &ai! !irectl' b' CO# o%t o( its a&&ro&riations an! contrib%tions.F 2$%s -# G7C8 itsel( recogniBes an e4ce&tion to t$e stat%tor' ban on CO# &ersonnel receiving com&ensation (rom GOCCs. *n 2e9a!a v. Domingo U05V t$e Co%rt !eclare!: 2$ere can be no .%estion t$at )ection 18 o( -e&%blic #ct No. G7C8 is !esigne! to strengt$en (%rt$er t$e &olic' 4 4 4 to &reserve t$e in!e&en!ence an! integrit' o( t$e CO# b' e4&licitl' =-OH*B*2*NG: ;1< CO# o((icials an! em&lo'ees (rom receiving salaries $onoraria bon%ses allo,ances or ot$er emol%ments (rom an' government entit' local government %nit GOCCs an! government (inancial instit%tions e4ce&t s%c$ com&ensation &ai! !irectl' b' t$e CO# o%t o( its a&&ro&riations an! contrib%tions an! ;/< government entities incl%!ing GOCCs government (inancial instit%tions an! local government %nits (rom assessing or billing ot$er government entities GOCCs government (inancial instit%tions or local government %nits (or services ren!ere!
/.
158

b' t$e latter>s o((icials an! em&lo'ees as &art o( t$eir reg%lar (%nctions (or &%r&oses o( &a'ing a!!itional com&ensation to sai! o((icials an! em&lo'ees. 2$e (irst as&ect o( t$e strateg' is !irecte! to t$e CO# itsel( ,$ile t$e secon! as&ect is a!!resse! !irectl' against t$e GOCCs an! government (inancial instit%tions. @n!er t$e (irst CO# &ersonnel assigne! to a%!iting %nits o( GOCCs or government (inancial instit%tions can receive onl' s%c$ salaries allo,ances or (ringe bene(its &ai! !irectl' b' t$e CO# o%t o( its a&&ro&riations an! contrib%tions. 2$e contrib%tions re(erre! to are t$e cost o( a%!it services earlier mentione! ,$ic$ cannot incl%!e t$e e4tra emol%ments or bene(its no, claime! b' &etitioners. 2$e CO# is (%rt$er barre! (rom assessing or billing GOCCs an! government (inancial instit%tions (or services ren!ere! b' its &ersonnel as &art o( t$eir reg%lar a%!it (%nctions (or &%r&oses o( &a'ing a!!itional com&ensation to s%c$ &ersonnel *n 2e9a!a t$e Co%rt e4&laine! t$e meaning o( t$e ,or! Econtrib%tionsF in )ection 18 o( -# G7C8 ,$ic$ allo,s CO# to c$arge GOCCs t$e cost o( its a%!it services: t$e contrib%tions (rom t$e GOCCs are limite! to t$e cost o( a%!it services ,$ic$ are base! on t$e act%al cost o( t$e a%!it (%nction in t$e cor&oration concerne! &l%s a reasonable rate to cover over$ea! e4&enses. 2$e act%al a%!it cost s$all incl%!e &ersonnel services maintenance an! ot$er o&erating e4&enses !e&reciation on ca&ital an! e.%i&ment an! o%tDo(D&oc+et e4&enses. *n res&ect to t$e allo,ances an! (ringe bene(its grante! b' t$e GOCCs to t$e CO# &ersonnel assigne! to t$e (ormer>s a%!iting %nits t$e same s$all be !irectl' !e(ra'e! b' CO# (rom its o,n a&&ro&riations. CO# ma' c$arge GOCCs Eact%al a%!it costF b%t GOCCs m%st &a' t$e same !irectl' to CO# an! not to CO# a%!itors. =etitioner $as not allege! t$at CO# c$arges L6Ds a%!iting (ees in e4cess o( CO#>s Eact%al a%!it cost.F Neit$er $as &etitioner allege! t$at t$e a%!iting (ees are &ai! b' L6Ds !irectl' to in!ivi!%al CO# a%!itors. 2$%s &etitioner>s contention m%st (ail.
115

On 7an%ar' / 18C/ t$e m%nici&al co%ncil o( Na%9an t$is time com&ose! o( a ne, set o( members a!o&te! -esol%tion 1 series o( 18C/ revo+ing -esol%tion /// series o( 18C1. On t$e same !ate t$e ne, co%ncil also &asse! -esol%tion 11 revo+ing -esol%tion //8 o( t$e ol! co%ncil ,$ic$ con(irme! t$e e4tension o( t$e lease &erio!. 2$e lessee re.%este! (or reconsi!eration an! recall o( -esol%tion 1 on t$e gro%n! among ot$ers t$at it violate! t$e contract e4ec%te! bet,een $im an! t$e m%nici&alit' on December /1 18C1 an! t$ere(ore contrar' to #rticle *** section 1 cla%se 15 o( t$e Constit%tion. 2$e re.%est $o,ever ,as not grante!. On )e&tember 0 18C/ t$e lessee instit%te! t$is &rocee!ings in t$e co%rt belo, see+ing to $ave -esol%tion 1 series o( 18C/ o( t$e m%nici&al co%ncil o( Na%9an !eclare! n%ll an! voi! (or being %nconstit%tional an! &ra'ing (or an or!er en9oining t$e !e(en!ant m%nici&alit' (rom con!%cting a &%blic bi!!ing (or t$e leasing o( t$e Na%9an (is$eries to an' &erson ot$er t$an t$e &lainti(( !%ring t$e &erio! (rom 7an%ar' 1 18C1 to December 11 18C7. #ns,ering t$e com&laint t$e !e(en!ant asserte! t$e vali!it' o( -esol%tion 1 series o( 18C1 alleging b' t$e ,a' o( s&ecial !e(ense t$at t$e resol%tion a%t$oriBing t$e original lease contract re!%cing t$e lease rentals an! rene,ing t$e lease are n%ll an! voi! (or not $aving been &asse! in accor!ance ,it$ la,. De(en!ant (%rt$er &%t %& a co%nterclaim (or t$e amo%nt re&resenting t$e illegal re!%ction o( /5Y o( t$e original rentals &l%s t$e s%m o( =/ 181.G5 &er mont$ beginning December 1 18C/ %ntil t$e case s$all $ave been terminate!. #(ter trial t$e lo,er co%rt ren!ere! 9%!gment %&$ol!ing t$e vali!it' o( t$e lease contract as ,ell at is e4tension an! !eclaring -esol%tion 1 series o( 18C/ n%ll an! voi!. 2$e m%nici&alit' o( Na%9an $as ta+en t$is a&&eal. *ss%e: 6ON -esol%tion No. 1 series o( 18C/ revo+ing -esol%tion /// series o( 18C1 o( t$e m%nici&al co%ncil o( Na%9an is vali!. 2$e la, ;)ec. /1/1 o( t$e -evise! #!ministrative Co!e< re.%ires t$at ,$en t$e e4cl%sive &rivilege o( (is$er' or t$e rig$t to con!%ct a (is$Dbree!ing gro%n! is grante! to a &rivate &art' t$e same s$all be let to t$e $ig$est bi!!er in t$e same manner as is being !one in e4&loiting a (err' a mar+et or a sla%g$ter$o%se belonging to t$e m%nici&alit'. 2$e re.%irement o( com&etitive bi!!ing is (or t$e &%r&ose o( inviting com&etition an! to g%ar! against (avoritism (ra%! an! corr%&tion in t$e letting o( (is$er' &rivileges 2$ere is no !o%bt t$at t$e original lease contract in t$is case ,as a,ar!e! to t$e $ig$est bi!!er b%t t$e re!%ction o( t$e
(an *iego v. Municipalit# o! ,au3an- Oriental Min oro Facts: 2$e m%nici&alit' o( Na%9an iss%e! -esol%tion 0G a,ar!ing t$e concession o( t$e B%tas -iver an! t$e Na%9an La+e to )an Diego. Contract: C 'ears (rom 7an%ar' 1 1808 to December 11 18C/ lease o( "t$e e4cl%sive &rivilege o( erecting (is$ corrals along t$e B%tas -iver beginning (rom its 9%nction ,it$ t$e )an #g%stin -iver %& to t$e Na%9an La+e itsel( " (or ann%al rental o( =/G 155.55. @&on &etition b' t$e lessee $o,ever t$e sai! co%ncil re!%ce! t$e ann%al rental b' /5Y b' virt%e o( -esol%tion C8 series o( 1808. On )e&tember C 18C5 t$e lessee re.%este! (or a (iveD'ear e4tension o( t$e original lease &erio!. 2$e re.%est ,as (or some time le(t &en!ing be(ore t$e m%nici&al co%ncil b%t on December 1 18C1 a(ter t$e lessee $a! reiterate! $is &etition (or e4tension (or t$e reason t$at t$e t'&$oon "6an!a" ,$ic$ too+ &lace t$at mont$ !estro'e! most o( $is (is$ corrals t$e co%ncil a!o&te! -esol%tion /// series o( 18C1 e4ten!ing t$e lease (or anot$er (ive ;C< 'ears beginning 7an%ar' 1 18C/ ,it$ t$e e4&ress con!ition t$at t$e &lainti(( ,o%l! ,aive t$e &rivilege to see+ (or re!%ction o( t$e amo%nt o( rent ,$ic$ ,as to be base! on t$e original contract. #(ter t$e resol%tion $a! been a&&rove! b' t$e =rovincial Boar! o( Oriental Min!oro t$e lessor an! t$e lessee on December /1 18C1 contracte! (or t$e e4tension o( t$e &erio! o( t$e lease. 2$e contract ,as a&&rove! an! con(irme! on December /8 18C1 b' -esol%tion //8 series o( 18C1 o( t$e m%nici&al co%ncil o( Na%9an ,$ose term ,as t$en abo%t to e4&ire. =%rs%ant to t$e sai! contract t$e lessee (ile! a s%ret' bon! o( =C/ 555.55 an! t$en reconstr%cte! $is (is$ corrals an! stoc+e! t$e Na%9an La+e ,it$ baRg%s (ingerlings.
111

rental an! t$e e4tension o( t$e term o( t$e lease a&&ear to $ave been grante! ,it$o%t &revio%s &%blic bi!!ing. Calte4 ;=$il.< *nc. et al. vs. Delga!o Bros. *nc.:t$e amen!ment to an arrastre contract ,as !eclare! n%ll an! voi! on t$e gro%n! t$at it ,as ma!e ,it$o%t &revio%s &%blic bi!!ing. *n so !eclaring t$is Co%rt $as a!o&te! t$e (ollo,ing o&inion:. . . it is t$e o&inion o( t$e Co%rt t$at t$e sai! agreement .. e4ec%te! an! entere! into ,it$o%t &revio%s &%blic bi!!ing is n%ll an! voi! an! cannot a!versel' a((ect t$e rig$ts o( t$ir! &arties . . . an! o( t$e &%blic in general. 2$e Co%rt agrees ,it$ t$e contention o( co%nsel (or t$e &lainti((s t$at t$e !%e e4ec%tion o( a contract a(ter &%blic bi!!ing is a limitation %&on t$e rig$t o( t$e contra!icting &arties to alter or amen! it ,it$o%t anot$er &%blic bi!!ing (or ot$er,ise ,$at ,o%l! a &%blic bi!!ing be goo! (or i( a(ter t$e e4ec%tion o( a contract a(ter &%blic bi!!ing t$e contracting &arties ma' alter or amen! t$e contract or even cancel it at t$eir ,illT =%blic bi!!ings are $el! (or t$e &rotection o( t$e &%blic an! to give t$e &%blic t$e best &ossible a!vantages b' means o( o&en com&etition bet,een t$e bi!!ers. He ,$o bi!s or o((ers t$e best terms is a,ar!e! t$e contract s%b9ect o( t$e bi! an! it is obvio%s t$at s%c$ &rotection an! best &ossible a!vantages to t$e &%blic ,ill !isa&&ear i( t$e &arties to a contract e4ec%te! a(ter &%blic bi!!ing ma' alter or amen! it ,it$o%t anot$er &revio%s &%blic bi!!ing. 6$ile in t$at case ,e r%le! t$at alt$o%g$ t$e "arrastre contract" t$erein .%estione! a%t$oriBe! t$e &arties to alter or amen! an' o( t$e terms t$ereo( s%c$ a%t$orit' m%st be consi!ere! as being s%b9ect to t$e re.%irement o( &revio%s &%blic bi!!ing a (ormalit' observe! be(ore t$e original contract ,as a,ar!e! ,it$ more reason s$o%l! t$e r%le re.%iring s%c$ &%blic bi!!ing be stric+l' a&&lie! in t$e instant case ,$ere no s%c$ a%t$orit' to alter or amen! t$e terms o( t$e contract ,as reserve!. F%rt$ermore it $as been r%le! t$at stat%tes re.%iring &%blic bi!!ing a&&l' to amen!ments o( an' contract alrea!' e4ec%te! in com&liance ,it$ t$e la, ,$ere s%c$ amen!ments alter t$e original contract in some vital an! essential &artic%lar *nasm%c$ as t$e &erio! in a lease is a vital an! essential &artic%lar to t$e contract ,e believe t$at t$e e4tension o( t$e lease &erio! in t$is case ,$ic$ ,as grante! ,it$o%t t$e essential re.%isite o( &%blic bi!!ing is not in accor!ance ,it$ la,. #n! it (ollo,s t$e -esol%tion /// series o( 18C1 an! t$e contract a%t$oriBe! t$ereb' e4ten!ing t$e original (iveD'ear lease to anot$er (ive 'ears are n%ll an! voi! as contrar' to la, an! &%blic &olic'. 6e agree ,it$ t$e !e(en!antDa&&ellant in t$at t$e .%estion -esol%tion 1 is not an im&airment o( t$e obligation o( contract beca%se t$e constit%tional &rovision on im&airment re(ers onl' to contract legall' e4ec%te!. 6$ile a&&arentl' -esol%tion 1 ten!e! to abrogate t$e contract e4ten!ing t$e lease legall' s&ea+ing t$ere ,as no contract abrogate! beca%se as ,e $ave sai! t$e e4tension contract is voi! an! ine4istent. 2$e lo,er co%rt in $ol!ing t$at t$e !e(en!antDa&&ellant m%nici&alit' $as been esto&&e! (rom assailing t$e vali!it' o( t$e contract into ,$ic$ it entere! on December /1 18C1 seems to $ave overloo+e! t$e general r%le t$at S. . . t$e !octrine o( esto&&el cannot be a&&lie! as against a m%nici&al cor&oration to vali!ate a contract ,$ic$ it $as no &o,er to ma+e or ,$ic$ it is a%t$oriBe! to ma+e onl' %n!er &rescribe! con!itions ,it$in &rescribe! limitations or in a &rescribe! mo!e or manner alt$o%g$ t$e cor&oration $as acce&te! t$e bene(its t$ereo( an! t$e ot$er &art' $as (%ll' &er(orme! $is &art o( t$e agreement or $as e4&en!e! large s%ms in &re&aration (or &er(ormance. # reason (re.%entl' assigne! (or t$is r%le is t$at to a&&l' t$e !octrine o( esto&&el against a m%nici&alit' in s%c$ case ,o%l! be to enable it to !o in!irectl' ,$at it cannot !o !irectl'. #lso ,$ere a contract is violative o( &%blic &olic' t$e m%nici&alit' e4ec%ting it cannot be esto&&e! to assert t$e invali!it' o( a contract ,$ic$ $as ce!e! a,a' controlle! or embarrasse! its legislative or government &o,ers. #s &ointe! o%t above "&%blic bi!!ings are $el! (or t$e best &rotection o( t$e &%blic an! to give t$e &%blic t$e best &ossible a!vantages b' means o( o&en com&etition bet,een t$e bi!!ers." 2$%s contracts re.%iring &%blic bi!!ing a((ect &%blic interest an! to c$ange t$em ,it$o%t com&l'ing ,it$ t$at re.%irement ,o%l! in!ee! be against &%blic &olic'. 2$ere is t$ere(ore not$ing to &lainti((Da&&elleeHs contention t$at t$e &arties in t$is case being in &ari !elicto s$o%l! be le(t in t$e sit%ation ,$ere t$e' are (o%n! (or "alt$o%g$ t$e &arties are in &ari !elicto 'et t$e co%rt ma' inter(ere an!
11/

grant relie( at t$e s%it o( one o( t$em ,$ere &%blic &olic' re.%ires its intervention even t$o%g$ t$e res%lt ma' be t$at a bene(it ,ill be !erive! b' a &lainti(( ,$o is in e.%al g%ilt ,it$ !e(en!ant. B%t $ere t$e g%ilt o( t$e &arties is not consi!ere! as e.%al to t$e $ig$er rig$t o( t$e &%blic an! t$e g%ilt' &art' to ,$om t$e relie( is grante! is sim&l' t$e instr%ment b' ,$ic$ t$e &%blic is serve!." *n vie, o( t$e (oregoing ,e $ol! t$at t$e m%nici&al co%ncil o( Na%9an acte! arig$t in a!o&ting -esol%tion 1 series o( 18C/ no, in .%estion. *n consonance ,it$ t$e &rinci&les en%nciate! above -esol%tion C8 series o( 1807 re!%cing t$e rentals b' /5Y o( t$e original &rice ,$ic$ ,as also &asse! ,it$o%t &%blic bi!!ing s$o%l! li+e,ise be $el! voi! since a re!%ction o( t$e rental to be &ai! b' t$e lessee is a s%bstantial alternation in t$e contract ma+ing it a !istinct an! !i((erent lease contract ,$ic$ re.%ires t$e &rescribe! (ormalit' o( &%blic bi!!ing. 2$ere seems to be no necessit' o( &assing on t$e vali!it' o( -esol%tion 0G series o( 1807 (or !e(en!antDa&&ellant a&&arentl' !i! not mean to $ave it ann%lle! as ma' be seen (rom its &ra'er in t$e co%rt belo, an! also in t$is a&&eal. #t an' rate t$e vali!it' o( sai! resol%tion !oes not alter o%r (in!ing to t$e e((ect t$at -esol%tion C8 series o( 1808 an! -esol%tion /// series o( 18C1 are illegal an! voi!A an! t$at -esol%tion 1 series o( 18C/ is vali!. Rivera v. Municipalit# o! Malolos Facts: )ometime in #%g%st 1808 t$e m%nici&alit' o( Malolos B%lacan calle! (or bi!s (or t$e s%&&l' o( roa! constr%ction materials to re&air t$e roa!s o( t$e m%nici&alit'. #t t$e &%blic bi!!ing $el! on /8 #%g%st 1808 (or t$at &%r&ose t$e -iveraHs bi! ,as t$e lo,est. On t$e same !a' /8 #%g%st 1808 t$e acting m%nici&al treas%rer in(orme! t$e &etitioner t$at t$e contract $a! been a,ar!e! to $im an! re.%este! $im to call at $is o((ice (or t$e e4ec%tion o( t$e contract. On 11 #%g%st 1808 t$e contract ,as signe! b' t$e m%nici&al ma'or in be$al( o( t$e m%nici&alit' an! t$e &etitioner. *t ,as sti&%late! t$at (or an! in consi!eration o( t$e s%m o( =18 /1C t$e &etitioner ,as to (%rnis$ an! !eliver to t$e m%nici&alit' o( Malolos / 755 c%bic meters o( cr%s$e! a!obe stone ;casca9o< an! 1 055 c%bic meters o( gravel. *n com&liance ,it$ t$e contract t$e &etitioner !elivere! cr%s$e! a!obe stone an! gravel to t$e m%nici&alit' at t$e &laces !esignate! b' t$e m%nici&al ma'or. On /8 7%l' 18C5 t$e &etitioner ,rote to t$e m%nici&al treas%rer t$ro%g$ t$e &rovincial a%!itor calling $is attention to t$e (act t$at t$e s%m o( =18 118.CG !%e $im as &a'ment (or t$e val%e o( cr%s$e! a!obe stone an! gravel !elivere! to t$e m%nici&alit' $a! not 'et been &ai! an! t$at as t$e (iscal 'ear 1808D18C5 $a! alrea!' e4&ire! $e re.%este! t$at t$e s%m be incl%!e! in t$e a&&ro&riations (or t$e incoming (iscal 'ear 18C5D18C1 as an o%tstan!ing obligation. On / #%g%st 18C5 t$e &rinci&al cler+ acting in be$al( o( t$e m%nici&al treas%rer in(orme! t$e &etitioner t$at "2$e M%nici&al Co%ncil ;$a!< agree! to &%t sai! amo%nt as stan!ing obligation o( t$e m%nici&alit' a%t$oriBing &a'ment an! a%t$oriBing t$e M%nici&al 2reas%rer to &a' as soon as (%n!s are available." On 1G October 18C1 t$e m%nici&al co%ncil &asse! -esol%tion No. G8 rati('ing t$e &%blic bi!!ing calle! b' t$e m%nici&al treas%rer (or t$e s%&&l' o( roa! constr%ction materials an! t$e contract entere! into b' t$e m%nici&al ma'or in be$al( o( t$e m%nici&alit' on 11 #%g%st 1808. On 15 October 18C1 t$e &etitioner (ile! a com&laint against t$e m%nici&alit' o( Malolos in t$e Co%rt o( First *nstance o( B%lacan to collect t$e s%m o( =18 /1C (or t$e val%e o( cr%s$e! a!obe stone an! gravel !elivere! b' t$e &etitioner %n!er t$e contract. On 8 Ma' 18C/ t$e &etitioner amen!e! $is com&laint. On 8 7an%ar' 18C0 t$e Co%rt !ismisse! t$e case ,it$o%t &re9%!ice. On 11 7an%ar' 18C0 t$e &etitioner so%g$t t$e intervention o( t$e =resi!ential Com&laints an! #ction Committee ,$ic$ (or,ar!e! t$e &etitionerHs claim t$ro%g$ &ro&er c$annels to t$e O((ice o( t$e #%!itor General. On 10 7an%ar' 18CC t$e De&%t' #%!itor General !enie! t$e &etitionerHs claim on t$e gro%n! t$at as t$ere ,as no s%m o( mone' a&&ro&riate! to meet t$e obligation inc%rre! be(ore t$e e4ec%tion o( t$e contract as re.%ire! b' section G57 o( t$e -evise! #!ministrative Co!e t$e sai! contract is voi! as &rovi!e! in section G58 o( t$e same Co!eA an! t$at even i( t$ere ,as s%c$ s%m a&&ro&riate! to meet s%c$ obligation t$e allege! !eliveries o( cr%s$e! a!obe stone an! gravel co%l! no longer be veri(ie! b' t$e =rovincial #%!itor o( B%lacan or $is re&resentative. On 1 Marc$ 18CC t$e &etitioner re.%este! t$e De&%t' #%!itor General to reconsi!er $is !ecision. On C Marc$ 18CC be(ore t$e sai! o((icer co%l! ta+e action on t$e re.%est (or reconsi!eration t$e &etitioner (ile! $is notice o( a&&eal ,it$ t$e O((ice o( t$e #%!itor General an! t$is &etition (or revie, in t$is Co%rt. On 8 Marc$ 18CC on motion o( t$e &etitioner t$is Co%rt resolve! to s%s&en! t$e service o( notice %&on t$e #%!itor General
111

&%rs%ant to section 0 -%le 0C an! grante! t$e &etitioner (ive !a's (rom recei&t o( notice o( t$e action ta+en b' t$e #%!itor General on $is re.%est (or reconsi!eration ,it$in ,$ic$ to (ile a s%&&lement to $is &etition (or revie,. On / 7%ne 18CC t$e De&%t' #%!itor General !enie! $is re.%est (or reconsi!eration reiterating t$e gro%n!s &revio%sl' relie! %&on in $is !ecision on 10 7an%ar' 18C0. On /1 7%ne 18CC t$e &etitioner (ile! a s%&&lement to $is &etition (or revie, in t$is Co%rt. *ss%e: 6ON -ivera can &ro&erl' claim (rom t$e m%nici&alit'. 2$e &etitioner conten!s t$at t$e res&on!ent s$o%l! not be allo,e! to invo+e legal tec$nicalities to !ela' or re(%se &a'ment a(ter its m%nici&al co%ncil $as ac+no,le!ge! t$e in!ebte!ness beca%se t$e res&on!ent m%nici&alit' $a! receive! an ann%al allotment or a certain &ercentage o( t$e amo%nt collecte! %n!er t$e &rovisions o( #ct No. 188/ +no,n as t$e Motor Ke$icle La, o%t o( ,$ic$ it co%l! &a' sai! in!ebte!ness an! t$at t$ere is no iss%e as to t$e vali!it' o( t$e contract entere! into b' an! bet,een t$e &etitioner an! t$e res&on!ent nor is t$ere an' .%estion as to t$e !eliver' b' t$e &etitioner an! recei&t b' t$e res&on!ent o( t$e roa! constr%ction materials. Be(ore a contract ma' be entere! into vali!l' b' a m%nici&alit' t$e la, re.%ires t$at t$ere s$o%l! be an a&&ro&riation o( m%nici&al (%n!s to meet t$e obligation vali!l' &asse! b' t$e m%nici&al co%ncil an! a&&rove! b' t$e m%nici&al ma'or. *n ans,er to t$e statement o( t$e )olicitor General t$at t$ere is no &rovision o( la, ,$ic$ a%t$oriBes a m%nici&al ma'or to enter into a contract ,it$ a &rivate contractor (or (%rnis$ing t$e m%nici&alit' ,it$ &%blic ,or+s materials t$e &etitioner cites sections /1GC an! /18G o( t$e -evise! #!ministrative Co!e. )ection /1GC &rovi!es t$at "M%nici&alities . . . are en!o,e! ,it$ t$e (ac%lties o( m%nici&al cor&orations to be e4ercise! b' an! t$ro%g$ t$eir res&ective m%nici&al governments in con(ormit' ,it$ la,." "*t s$all be com&etent (or t$em in t$eir &ro&er cor&orate name . . . to contract an! be contracte! ,it$ . . . ." 2$e &o,er or a%t$orit' con(erre! %&on m%nici&al cor&orations m%st be e4ercise! in con(ormit' ,it$ la, an! t$e la, &rovi!es t$at s%c$ contracts m%st be entere! into b' t$e !istrict engineer.
2$e &etitioner conten!s $o,ever t$at section 18/5 o( t$e

-evise! #!ministrative Co!e m%st be rea! in connection ,it$ sections 181/ an! 1811 o( t$e same Co!e an! concl%!es t$at section 18/5 !oes not abrogate t$e general r%le t$at a m%nici&al co%ncil ma' !esignate an o((icer o( t$e m%nici&al cor&oration to e4ec%te s%c$ a contract in be$al( o( t$e m%nici&alit'. )ection 181/ re(ers to investigations an! s%rve' b' t$e !istrict engineer (or a &ro&ose! constr%ction or re&air o( &%blic ,or+s an! s%bmission b' $im to t$e ma'or to re&orts an! estimates o( t$e cost o( s%c$ constr%ction or re&air ,it$ $is recommen!ations an! to t$e &re&aration o( &lans an! s&eci(ications (or s%c$ &%blic ,or+s an! s%&ervision o( t$e constr%ction or re&air o( t$e same. 2$e &rovisions o( sections 181/ an! 1811 o( t$e -evise! #!ministrative Co!e !o not re(er to contracts entere! into b' t$e m%nici&alit' (or t$e s%&&l' o( roa! constr%ction materials. *( t$e la, re.%ires t$at be(ore a contract involving t$e e4&en!it%re o( =/ 555 or more ma' be entere! into or a%t$oriBe! t$e m%nici&al treas%rer m%st certi(' to t$e o((icer entering into s%c$ contract t$at (%n!s $ave been !%l' a&&ro&riate! (or s%c$ &%r&ose an! t$at t$e amo%nt necessar' to cover t$e &ro&ose! contract is available (or e4&en!it%re on acco%nt t$ereo(A / an! t$at a &%r&orte! contract entere! into contrar' to t$e re.%irements 9%st state! is ,$oll' voi! t$e &etitionerHs claim t$at t$ere is no longer an' .%estion as to t$e vali!it' o( t$e contract entere! into b' an! bet,een t$e &etitioner an! t$e m%nici&al ma'or o( Malolos is not correct. Li+e,ise i( t$e la, &rovi!es t$at t$e &rovincial a%!itor or $is re&resentative m%st c$ec+ %& t$e !eliveries ma!e b' a contractor &%rs%ant to a contract la,(%ll' an! vali!l' entere! into 1 an! t$ere ,as no s%c$ c$ec+ %& t$e &etitionerHs claim t$at t$ere is no longer an iss%e as to ,$et$er t$e roa! constr%ction materials $ave been act%all' !elivere! b' t$e &etitioner an! receive! b' t$e res&on!ent is gro%n!less. 2$e #%!itor General is not in !%t' bo%n! to &ass an! allo, in a%!it t$e s%m claime! b' t$e &etitioner i( $e or $is a%t$oriBe! re&resentative !i! not c$ec+ %& t$e !eliver' o( t$e cr%s$e! a!obe stone an! gravel. 2o sa' t$at t$e &%r&ose an! aim o( t$is c$ec+ing re.%irement is to (orestall (ra%! an! coll%sion is to state ,$at is obvio%s.
110

2$e &etitioner enliste! t$e ai! o( t$e =resi!ential Com&laints an! #ction Committee to re.%est t$e #%!itor General to &ass in a%!it an! a%t$oriBe t$e &a'ment or t$e &etitionerHs claim. 2$e #%!itor General $a! no alternative b%t to com&l' ,it$ t$e &rovisions o( t$e la, an! as t$e contract entere! into b' t$e m%nici&al ma'or o( Malolos B%lacan ,as not in accor!ance ,it$ la, t$e #%!itor General ,as correct in !en'ing t$e &etitionerHs claim. )ection 71 #ct No. 188/ ot$er,ise +no,n as t$e Motor Ke$icle La, as amen!e! b' section / -e&%blic #ct No. 110 invo+e! b' t$e &etitioner merel' allocates 15 &er cent o( t$e mone' collecte! %n!er its &rovisions to t$e roa! an! bri!ge (%n!s o( t$e !i((erent m%nici&alities in &ro&ortion to &o&%lation as s$o,n in t$e latest available cens%s (or t$e re&air maintenance an! constr%ction o( m%nici&al roa!s. 2$is alone is not s%((icient a&&ro&riation an! a%t$orit' to !isb%rse &art o( t$e 15 &er cent collecte! %n!er t$e Motor Ke$icle La, (or t$e &%r&ose o( &a'ing t$e claim o( t$e &etitioner. #n! t$e section cite! as amen!e! b' section C o( -e&%blic #ct No. 817 a&&rove! on /5 7%ne 18C1 &rovi!es: Mone's collecte! %n!er t$e &rovisions o( t$is #ct s$all be !e&osite! in a s&ecial tr%st acco%nt in t$e National 2reas%r' to constit%te t$e Hig$,a' )&ecial F%n! ,$ic$ s$all be a&&ortione! an! e4&en!e! in accor!ance ,it$ t$e &rovisions o( t$e =$ili&&ine Hig$,a' #ct o( nineteen $%n!re! an! (i(t'Dt$ree. )ection G58 o( t$e -evise! #!ministrative Co!e a((or!s t$e &etitioner a reme!'. Rivera v. Maclang Facts: On #%g%st 18 1808 t$e m%nici&alit' o( Malolos calle! (or bi!s (or (%rnis$ing an! !elivering materials to be %se! in t$e maintenance an! re&air o( barrio roa!s. -ivera ,on in t$e bi!!ing an! ,as as+e! b' t$e M%nici&al 2reas%rer to come to $is o((ice (or e4ec%tion o( t$e corres&on!ing contract. On #%g%st 11 1808 t$e contract ,as signe! b' a&&ellant an! b' Maclang in $is ca&acit' as M%nici&al Ma'or o( Malolos. =%rs%ant t$ereto a&&ellant s%bse.%entl' !elivere! to t$e m%nici&alit' gravel an! a!obe stones val%e! at =18 /1C.55. On October 1G 18C1 t$e M%nici&al co%ncil o( Malolos &asse! a resol%tion a&&roving t$e contract b%t in s&ite o( re&eate! !eman!s b' a&&ellant t$e &rice o( t$e materials ,as not &ai!. *n 18C0 a&&ellant so%g$t t$e intervention o( t$e =resi!ential Com&laint an! #ction Commission ,$ic$ re(erre! t$e matter to t$e General #%!iting O((ice. 2$at o((ice t%rne! !o,n t$e claim (or &a'ment ,$ere%&on a&&ellant (ile! in t$is Co%rt a &etition (or revie, !oc+ete! as )CDG.-. No. LD8807. *n its !ecision o( October 11 18C7 t$is Co%rt s%staine! t$e action o( t$e General #%!iting O((ice an! $el! t$at t$e contract in .%estion ,as voi! as (ar as t$e m%nici&al government o( Malolos ,as concerne! on t$e gro%n! t$at no mone' $a! been a&&ro&riate! to meet t$e obligation &rior to t$e e4ec%tion o( t$e contract as re.%ire! b' section G57 -evise! #!ministrative Co!e. Ho,ever in t$e same !ecision t$is Co%rt in!icate! t$at section G58 o( t$e same Co!e a((or!e! a&&ellant a reme!'. Conse.%entl' $e (ile! t$e &resent action against !e(en!antD a&&ellee in $is &ersonal ca&acit' &%rs%ant to t$e sai! &rovision. 2$e trial co%rt !ismisse! t$e com&laint stating t$at inasm%c$ as in t$e &revio%s case t$e contract entere! into bet,een a&&ellant an! t$e M%nici&alit' o( Malolos $a! been !eclare! n%ll an! voi! b' t$is Co%rt "it cannot &ro!%ce an' legal e((ect (or ,$ic$ t$erea(ter no recover' can be ma!e." *ss%e: 6ON t$e !ismissal is erroneo%s. O%r r%ling in t$e &revio%s case is t$at t$e contract ,as n%ll an! voi! visDaDvis t$e M%nici&alit' o( Malolos b' reason o( noncom&liance ,it$ t$e re.%irement o( section G57 o( t$e -evise! #!ministrative Co!e ,$ic$ states t$at "e4ce&t in t$e case o( a contract (or s%&&lies to be carrie! in stoc+ no contract involving t$e e4&en!it%re b' an' &rovince m%nici&alit' c$artere! cit' or m%nici&al !istrict o( t,o t$o%san! &esos or more s$all be entere! into or a%t$oriBe! %ntil t$e treas%rer o( t$e &olitical !ivision concerne! s$all $ave certi(ie! to t$e o((icer entering into s%c$ contract t$at (%n!s $ave been !%l' a&&ro&riate! (or s%c$ &%r&ose an! t$at t$e amo%nt necessar' to cover t$e &ro&ose! contract is available (or e4&en!it%re on acco%nt t$ereo(." *t s$o%l! be note! t$at t$e &resent action is against !e(en!antD a&&ellee in $is &ersonal ca&acit' on t$e strengt$ o( section G58 o( t$e same co!e ,$ic$ &rovi!es as (ollo,s: )3C. G58.Koi! contract S Liabilit' o( o((icer. S # &%r&orte! contract entere! into contrar' to t$e re.%irements o( t$e ne4t &rece!ing section $ereo( s$all be ,$oll' voi! an! t$e
11C

o((icer ass%ming to ma+e s%c$ contract s$all be liable to t$e Government or ot$er contracting &art' (or an' conse.%ent !amage to t$e same e4tent as i( t$e transaction $a! been ,$oll' bet,een &rivate &arties." 2$e &osition o( !e(en!antDa&&ellee as t$e o((icer ,$o signe! t$e contract ,it$ a&&ellant in violation o( section G57 comes s.%arel' %n!er t$e &rovision 9%st .%ote!. His liabilit' is &ersonal as i( t$e transaction $a! been entere! into b' $im as a &rivate &art'. 6e ta+e it t$at t$e intention o( t$e la, in t$is res&ect is to ens%re t$at &%blic o((icers entering into transactions ,it$ &rivate in!ivi!%als calling (or t$e e4&en!it%re o( &%blic (%n!s observe a $ig$ !egree o( ca%tion so t$at t$e government ma' not be t$e victim o( illD a!vise! or im&rovi!ent action b' t$ose ass%ming to re&resent it. . Pala!ox v. Province o! )locos ,orte Facts: a tr%c+ !river em&lo'e! b' t$e &rovincial government o( *locos Norte ran over =roceto =ala(o4 in t$e co%rse o( $is ,or+ at t$e constr%ction o( a roa!. *ss%e: 6ON t$e em&lo'ee ma' be $el! liable. 2$e )%&reme Co%rt in a((irming t$e trial co%rtHs !ismissal o( t$e com&laint (or !amages $el! t$at t$e &rovince co%l! not be ma!e liable beca%se its em&lo'ee ,as in t$e &er(ormance o( a governmental (%nction t$e constr%ction an! maintenance o( roa!s an! $o,ever tragic an! !e&lorable it ma' be t$e !eat$ o( =ala(o4 im&ose! on t$e &rovince no !%t' to &a' monetar' consi!eration. Men oza v. *e Leon Facts: 2$is is an action (or !amages against t$e in!ivi!%al members o( t$e m%nici&al co%ncil o( t$e m%nici&alit' o( Killasis =angasinan (or t$e revocation o( t$e lease o( an e4cl%sive (err' &rivilege a,ar!e! to t$e &lainti(( %n!er t$e &rovisions o( #ct. No. 1G10 o( t$e =$ili&&ine Commission. #(ter %ser o( a little more t$an one 'ear t$e &lainti(( ,as (orcibl' e9ecte! %n!er an! in &%rs%ance o( a resol%tion a!o&te! b' t$e $erein !e(en!ants a,ar!ing a (ranc$ise (or t$e same (err' to anot$er &erson. *ss%e: 6ON t$e m%nici&alit' ma' be s%e! (or acts !one in t$e e4ercise o( its cor&orate (%nctions. M%nici&alities o( t$e =$ili&&ine *slan!s organiBe! %n!er t$e M%nici&al Co!e $ave bot$ governmental an! cor&orate or b%siness (%nctions. O( t$e (irst class are t$e a!o&tion o( reg%lations against (ire an! !isease &reservation o( t$e &%blic &eace maintenance o( m%nici&al &risons establis$ment o( &rimar' sc$ools an! &ostDo((ices etc. O( t$e latter class are t$e establis$ment o( m%nici&al ,ater,or+s (or t$e %se o( t$e in$abitants t$e constr%ction an! maintenance o( m%nici&al sla%g$ter$o%ses mar+ets stables bat$ing establis$ments ,$arves (erries an! (is$eries. #ct No. 1G10 &rovi!es t$at t$e %se o( eac$ (is$er' (is$Dbree!ing gro%n! (err' stable mar+et sla%g$ter$o%se belonging to an' m%nici&alit' or to,ns$i& s$all be let to t$e $ig$est bi!!er ann%all' or (or s%c$ longer &erio! not e4cee!ing (ive 'ears as ma' $ave been &revio%sl' a&&rove! b' t$e &rovincial boar! o( t$e &rovince in ,$ic$ t$e m%nici&alit' or to,ns$i& is locate!. 2$e t,o(ol! c$aracter o( t$e &o,ers o( a m%nici&alit' %n!er o%r M%nici&al Co!e ;#ct No. 8/< is so a&&arent an! its &rivate or cor&orate &o,ers so n%mero%s an! im&ortant t$at ,e (in! no !i((ic%lt' in reac$ing t$e concl%sion t$at t$e general &rinci&les governing t$e liabilit' o( s%c$ entities to &rivate in!ivi!%als as en%nciate! in t$e @nite! )tates are a&&licable to it. 2$e !istinction bet,een governmental &o,ers on t$e one $an! an! cor&orate or &ro&rietar' or b%siness &o,ers on t$e ot$er as t$e latter class is vario%sl' !escribe! in t$e re&orte! cases $as long been recogniBe! in t$e @nite! )tates an! t$ere is no !issent (rom t$e !octrine. 2$e m%nici&alit' is not liable (or t$e acts o( its o((icers or agents in t$e &er(ormance in t$e &er(ormance o( its governmental (%nctions. Governmental a((airs !o not lose t$eir governmental c$aracter b' being !elegate! to t$e m%nici&al government. Nor !oes t$e (act t$at s%c$ !%ties are &er(orme! b' s%c$ o((icers o( t$e m%nici&alit' ,$ic$ (or convenience t$e state allo,s t$e m%nici&alit' to select c$ange t$eir c$aracter. 2o &reserve t$e &eace &rotect t$e morals an! $ealt$ o( t$e comm%nit' an! so on is to a!minister government ,$et$er it be !one b' t$e central government itsel( or is s$i(te! to a local organiBation. #n!
11G

t$e state being imm%ne (or in9%ries s%((ere! b' &rivate in!ivi!%als in t$e a!ministration o( strictl' governmental (%nctions li+e imm%nit' is en9o'e! b' t$e m%nici&alit' in t$e &er(ormance o( t$e same !%ties %nless it is e4&ressl' ma!e liable b' stat%te. "2$e state cannot ,it$o%t its consent e4&resse! t$ro%g$ legislation be s%e! (or in9%ries res%lting (rom an act !one in t$e e4ercise o( its la,(%l governmental &o,ers an! &ertaining to t$e a!ministration o( government. . . . M%nici&al cor&orations are agents o( t$e state in t$e e4ercise o( certain governmental &o,ers. 2$e &reservation o( t$e $ealt$ an! &eace o( its in$abitants an! (ire &rotections a((or!e! t$e &ro&ert' o,ner are governmental (%nctions." # m%nici&alit' is not e4em&t (rom liabilit' (or t$e negligent &er(ormance o( its cor&orate or &ro&rietar' or b%siness (%nctions. *n t$e a!ministration o( its &atrimonial &ro&ert' it is to be regar!e! as a &rivate cor&oration or in!ivi!%al 1C1111D11 so (ar as its liabilit' to t$ir! &ersons on contract or in tort is concerne!. *ts contracts vali! entere! into ma' be en(orce! an! !amages ma' be collecte! (rom it (or t$e torts o( its o((icers or agents ,it$in t$e sco&e o( t$eir em&lo'ment in &recisel' t$e same manner an! to t$e same e4tent as t$ose o( &rivate cor&orations or in!ivi!%als. #s to s%c$ matters t$e &rinci&les res&on!eat s%&erior a&&lies. *t is (or t$ese &%r&oses t$at t$e m%nici&alit' is ma!e liable to s%its in t$e co%rts. "M%nici&al cor&orations are s%b9ect to be s%e! %&on contracts an! in tort. *n a &revio%s c$a&ter ,e $ave consi!ere! at lengt$ t$e a%t$orit' o( s%c$ cor&orations to ma+e contracts t$e mo!e o( e4ercising an! t$e e((ect o( transcen!ing t$e &o,er. 2$is leaves b%t little to a!! in t$is &lace res&ecting t$eir liabilit' in actions e4 contract%. @&on an a%t$oriBe! contract DDDD t$at is %&on a contract ,it$in t$e sco&e o( t$e c$arter or legislative &o,ers o( t$e cor&oration an! !%l' ma!e b' t$e &ro&er o((icers or agents DDDD t$e' are liable in t$e same manner an! to t$e same e4tent as &rivate cor&orations or nat%ral &ersons." 2$e same a%t$or sa's in section 1G07:"2$e r%le o( la, is a general one t$at t$e s%&erior or em&lo'er m%st ans,er civill' (or t$e negligence or ,ant o( s+ill o( $is agent or servant in t$e co%rse or line o( $is em&lo'ment b' ,$ic$ anot$er ,$o is (ree (rom contrib%tor' (a%lt is in9%re!. M%nici&al cor&orations %n!er t$e con!itions $erein state! (all ,it$in t$e o&eration o( t$is r%le o( la, an! are liable accor!ingl' to civil actions (or !amages ,$en t$e re.%isite elements o( liabilit' coe4ist. 2o create s%c$ liabilit' it is (%n!amentall' necessar' t$at t$e act !one ,$ic$ is in9%rio%s to ot$ers m%st be ,it$in t$e sco&e o( t$e cor&orate &o,ers as &rescribe! b' c$arter or &ositive enactment ;t$e e4tent o( ,$ic$ &o,ers all &ersons are bo%n! at t$eir &eril to +no,<A in ot$er ,or!s it m%st not be %ltra vires in t$e sense t$at it is not ,it$in t$e &o,er or a%t$orit' o( t$e cor&oration to act in re(erence to it %n!er an' circ%mstances. *( t$e act com&laine! o( necessaril' lies ,$oll' o%tsi!e o( t$e general or s&ecial &o,ers o( t$e cor&oration as con(erre! in its c$arter or b' stat%te t$e cor&oration can in no event be liable to an action (or !amages ,$et$er it !irectl' comman!e! t$e &er(ormance o( t$e act or ,$et$er it be !one b' its o((icers ,it$o%t its e4&ress comman!A (or a cor&oration cannot o( co%rse be im&lie!l' liable to a greater e4tent t$an it co%l! ma+e itsel( b' e4&ress cor&orate vote or action." *t o(ten $a&&ens t$at t$e same agent or agenc' $as bot$ a governmental an! a cor&orate c$aracter. )%c$ (or instance are a m%nici&al ,ater s'stem !esigne! bot$ (or &rotection against (ire ;a governmental (%nction< an! to s%&&l' ,ater to t$e in$abitants (or &ro(it ;a cor&orate (%nction< a m%nici&al lig$t &lant bot$ (or lig$ting t$e streets ;a governmental (%nction< an! (or (%rnis$ing lig$t to t$e in$abitants at a &ro(it ;a cor&orate (%nction<A an agent ,$o is at t$e same time a &olice o((icer an! a careta+er o( a m%nici&al toll bri!ge. *t is also sometimes t$e case t$at consi!erable !i((ic%lt' is e4&erience! in !etermining ,$et$er a &artic%lar m%nici&al !%t' is governmental or cor&orate. B%t .%estions s%c$ as t$ese !o not arise in t$e case at bar. Here it is clear t$at t$e leasing o( a m%nici&al (err' to t$e $ig$est bi!!er (or a s&eci(ie! &erio! o( time is not a governmental b%t cor&orate (%nction. )%c$ a lease ,$en vali!l' entere! into constit%tes a contract ,it$ t$e lessee ,$ic$ t$e m%nici&alit' is bo%n! to res&ect. 2$e matter is t$%s s%mme! %& b' Dillon on M%nici&al Cor&orations:"Or!inances ma!e b' m%nici&alities %n!er
117

c$arter or legislative a%t$orit' containing grants to ,ater an! lig$t com&anies an! ot$er &%blic service cor&orations o( t$e rig$t to %se t$e street &i&es mains etc. %&on t$e con!ition o( t$e &er(ormance o( service b' t$e grantee are a(ter acce&tance an! &er(ormance b' t$e grantee contracts &rotecte! b' t$e &ro$ibition o( t$e Fe!eral Constit%tion against t$e enactment o( an' )tate La, im&airing t$e obligation o( contracts." *t seems clear t$ere(ore t$at %n!er t$e &rovisions o( t$e M%nici&al Co!e an! #ct No. 1G10 above re(erre! to t$e &lainti(( $a! a veste! rig$t to t$e e4cl%sive o&eration o( t$e (err' in .%estion (or t$e &erio! o( $is lease. 6ere t$e m%nici&alit' a &art' to t$is action it ,o%l! be &atent t$at a 9%!gment (or !amages against it (or t$e rescission o( t$e contract ,o%l! be &ro&er. 2$is be it sai! is t$e %s%al met$o! o( e4acting !amages eit$er e4 contract% or e4 !elicto arising (rom t$e e4ercise o( cor&orate &o,ers o( m%nici&alities. B%t t$e &resent action is against t$e members o( t$e m%nici&al co%ncil &ersonall' an! t$e .%estion arise: #re t$e' liableT *n a!ministering t$e &atrimonial &ro&ert' o( m%nici&alities t$e m%nici&al co%ncil occ%&ies (or most &%r&oses t$e &osition o( a boar! o( !irectors o( a &rivate cor&oration. *n !is&osing o( t$e local &%blic %tilities i( t$e term ma' be %se! s%c$ as t$e (is$ing an! (err' rig$ts etc. t$e' m%st e4ercise consi!erable 9%!gment. *t re.%ires some consi!erable amo%nt o( b%siness ac%men to com&el &er(ormance on t$e &art o( lessees o( t$ese &rivileges in accor!ance ,it$ t$e terms o( t$eir leases an! in a manner in ,$ic$ ,ill not ca%se t$e &ro&ert' to !eteriorate. W%estions m%st contin%all' arise ,$ic$ are not e4&ressl' &rovi!e! (or in t$e contracts an! ,$ic$ m%st be settle! i( &ossible in a manner t$at ,ill &reserve t$e 9%st claims o( t$e m%nici&alit'. *n!ee! it is not at all im&robable t$at on occasion t$e co%ncilors ma' $ave reason to believe t$at a &artic%lar contract $as been rescin!e! b' t$e ot$er &art' or $as never been legall' entere! into in bot$ o( ,$ic$ cases !ecisive ste&s m%st be ta+en to sa(eg%ar! t$e interest o( t$e m%nici&alit'. 2$%s in M%nici&alit' o( Monca!a vs. Ca9%igan ;/1 =$il. -e&. 180< t$e lessee o( a m%nici&al (is$er' ,as evicte! (or (ailing to &a' $is .%arterl' rents. 2$e m%nici&al a%t$orities rig$tl' $el! t$at t$e contract ,as rescin!e! b%t (orcibl' evicte! t$e lessee instea! o( resorting to t$e co%rts. Hence in an action b' t$e m%nici&alit' against t$e lessee an! $is bon!smen to recover rent arrears !amages ,ere allo,e! t$e lessee on $is co%nterclaim (or t$e loss ca%se! b' t$e (orcible eviction. Nevert$eless ,e !o not t$in+ t$e co%ncilors co%l! $ave been &ersonall' $el! liable (or t$eir error in resorting to (orcible eviction o( t$e lessee. 2$eirs ,as an error o( 9%!gment an! $onest mista+e on t$eir &art as to t$e rig$ts o( t$e m%nici&alit' in t$e &remises. 6e t$in+ t$e r%le o( &ersonal liabilit' s$o%l! be ,it$ m%nici&al co%ncilors in s%c$ matters as it is ,it$ t$e !irectors or managers o( an or!inar' &rivate cor&oration. "@n!er t$e r%le t$at !irectors are not liable (or mista+es o( 9%!gment it (ollo,s nat%rall' t$at t$e' are not liable (or t$e mismanagement o( t$e cor&orate a((airs ,$ere s%c$ mismanagement is a mista+e o( 9%!gment. 2$e ,is!om o( t$is r%le is not onl' a&&rove! b' common e4&erience b%t b' la, ,riters an! all co%rts. # r%le so rigi! as to $ol! !irectors &ersonall' liable (or $onest mista+es in cor&orate management ,o%l! !eter all &r%!ent b%siness men (rom acce&ting s%c$ &ositions. 2$e reme!' o( stoc+$ol!ers in all s%c$ cases is b' a c$ange in t$e !irector'. . . . 2$e r%le is t$at t$e co%rts ,ill not inter(ere even in !o%bt(%l cases. B%t !irectors an! managing !irectors ma' be liable (or mismanagement to ,arrant t$e inter&osition o( a co%rt eit$er as against t$e contem&late! action o( t$e !irectors or a ma9orit' o( t$e stoc+$ol!ers or to give relie( b' ,a' o( !amages a(ter t$e action $as been ta+enA a case m%st be ma!e o%t ,$ic$ &lainl' s$o,s t$at s%c$ action is so (ar o&&ose! to t$e tr%e interests o( t$e cor&oration itsel( as to lea! to t$e clear in(erence t$at no t$%s acting co%l! $ave been in(l%ence! b' an' $onest !esire to sec%re s%c$ interests b%t t$at $e m%st $ave acte! ,it$ an intent to s%bserve some o%tsi!e &%r&ose regar!less o( t$e conse.%ences to t$e cor&oration an! in a manner inconsistent ,it$ its interests." *n t$e case at bar t$ere is not a scintilla o( evi!ence t$at t$ere ,as an' 9%sti(iable reason (or (orcibl' evicting t$e &lainti(( (rom t$e (err' ,$ic$ $e $a! lease!. On t$e contrar' t$e !e(en!ant co%ncilors attem&te! to 9%sti(' t$eir action on t$e gro%n! t$at t$e (err' ,$ic$ $e ,as o&erating ,as not t$e one lease! to $imA t$is in s&ite o( t$e (act t$e viceD
118

&resi!ent $a! &ersonall' &lace! $im in &ossession o( it more t$an a 'ear be(ore an! t$e (act t$at $e $a! o&erate! t$is (err' (or over a 'ear evi!entl' ,it$ t$e +no,le!ge o( t$e !e(en!ants. 2$e evi!ence is so clear t$at t$e (err' o( ,$ic$ t$e &lainti(( ,as !is&ossesse! ,as t$e one ,$ic$ $e $a! lease! t$at no reasonable man ,o%l! entertain an' !o%bt ,$atever %&on t$e .%estion. Hence ,e cannot sa' t$at in rescin!ing t$e contract ,it$ t$e &lainti(( t$ereb' ma+ing t$e m%nici&alit' liable to an action (or !amages (or no vali! reason at all t$e !e(en!ant co%ncilors ,ere $onestl' acting (or t$e interests o( t$e m%nici&alit'. 6e are t$ere(ore o( t$e o&inion t$at t$e !e(en!ants are liable 9ointl' an! severall' (or t$e !amages s%staine! b' t$e &lainti(( (rom t$e rescission o( $is contract o( lease o( t$e (err' &rivilege in .%estion. *n reac$ing t$is concl%sion ,e $ave not (aile! to ta+e into consi!eration t$e r%le en%nciate! in Dennison vs. 2$e Moro =rovince nor t$e !istinction ma!e b' t$e co%rts in t$e @nite! )tates bet,een t$e liabilit' o( a m%nici&al cor&oration ma!e s%c$ b' acce&tance o( a village or cit' c$arter an! t$e invol%ntar' .%asi cor&orations +no,n as co%nties to,ns sc$ools !istricts an! es&eciall' t$e to,ns$i&s o( Ne, 3nglan!. @&on t$e .%estion o( t$e amo%nt o( !amages s%staine! ,e acce&t t$e (in!ings o( t$e lo,er co%rt. Municipalit# o! (an &ernan o- La Anion v. &irme Facts: #t abo%t 7 oHcloc+ in t$e morning o( December 1G 18GC a collision occ%rre! involving a &assenger 9ee&ne' !riven b' Bernar!o Balagot an! o,ne! b' t$e 3state o( Macario Nieveras a gravel an! san! tr%c+ !riven b' 7ose Manan!eg an! o,ne! b' 2an.%ilino Kelas.%eB an! a !%m& tr%c+ o( t$e M%nici&alit' o( )an Fernan!o La @nion an! !riven b' #l(re!o Bislig. D%e to t$e im&act several &assengers o( t$e 9ee&ne' incl%!ing La%reano BaniRa )r. !ie! as a res%lt o( t$e in9%ries t$e' s%staine! an! (o%r ;0< ot$ers s%((ere! var'ing !egrees o( &$'sical in9%ries. On December 11 18GG t$e &rivate res&on!ents instit%te! a com&laint (or !amages against t$e 3state o( Macario Nieveras an! Bernar!o Balagot o,ner an! !river res&ectivel' o( t$e &assenger 9ee&ne' ,$ic$ ,as !oc+ete! Civil Case No. /181 in t$e Co%rt o( First *nstance o( La @nion Branc$ * )an Fernan!o La @nion. Ho,ever t$e a(oresai! !e(en!ants (ile! a 2$ir! =art' Com&laint against t$e &etitioner an! t$e !river o( a !%m& tr%c+ o( &etitioner. 2$erea(ter t$e case ,as s%bse.%entl' trans(erre! to Branc$ *K &resi!e! over b' res&on!ent 9%!ge an! ,as s%bse.%entl' !oc+ete! as Civil Case No. 157DBg. B' virt%e o( a co%rt or!er !ate! Ma' 7 187C t$e &rivate res&on!ents amen!e! t$e com&laint ,$erein t$e &etitioner an! its reg%lar em&lo'ee #l(re!o Bislig ,ere im&lea!e! (or t$e (irst time as !e(en!ants. =etitioner (ile! its ans,er an! raise! a((irmative !e(enses s%c$ as lac+ o( ca%se o( action nonDs%abilit' o( t$e )tate &rescri&tion o( ca%se o( action an! t$e negligence o( t$e o,ner an! !river o( t$e &assenger 9ee&ne' as t$e &ro4imate ca%se o( t$e collision. *n t$e co%rse o( t$e &rocee!ings t$e res&on!ent 9%!ge iss%e! t$e (ollo,ing .%estione! or!ers: ;1< Or!er !ate! November 0 187C !ismissing t$e crossDclaim against Bernar!o BalagotA ;/< Or!er !ate! 7%l' 11 187G a!mitting t$e #men!e! #ns,er o( t$e M%nici&alit' o( )an Fernan!o La @nion an! Bislig an! setting t$e $earing on t$e a((irmative !e(enses onl' ,it$ res&ect to t$e s%&&ose! lac+ o( 9%ris!ictionA ;1< Or!er !ate! #%g%st /1 187G !e(erring t$e resol%tion o( t$e gro%n!s (or t$e Motion to Dismiss %ntil t$e trialA ;0< Or!er !ate! Febr%ar' /1 1877 !en'ing t$e motion (or reconsi!eration o( t$e or!er o( 7%l' 11 187G (ile! b' t$e M%nici&alit' an! Bislig (or $aving been (ile! o%t o( timeA ;C< Or!er !ate! Marc$ 1G 1877 reiterating t$e !enial o( t$e motion (or reconsi!eration o( t$e or!er o( 7%l' 11 187GA ;G< Or!er !ate! 7%l' /G 1878 !eclaring t$e case !eeme! s%bmitte! (or !ecision it a&&earing t$at &arties $ave not 'et s%bmitte! t$eir res&ective memoran!a !es&ite t$e co%rtHs !irectionA an! ;7< Or!er !ate! )e&tember 7 1878 !en'ing t$e &etitionerHs motion (or reconsi!eration an! or or!er to recall &rosec%tion ,itnesses (or cross e4amination. 2C: !e(en!ants M%nici&alit' o( )an Fernan!o La @nion an! #l(re!o Bislig are or!ere! to &a' 9ointl' an! severall' &lainti((s 7%ana -iman!oDBaniRa Mrs. =riscilla B. )%rell La%reano BaniRa 7r. )or Marietta BaniRa Mrs. Fe B. )oriano Montano BaniRa Or9a BaniRa an! L'!ia B. BaniRa t$e s%ms o( =1 C55.55 as (%neral e4&enses an! =/0 700./0 as t$e lost e4&ecte! earnings o( t$e late La%reano BaniRa )r. =15 555.55 as moral !amages an! =/ C55.55 as attorne'Hs (ees. Costs against sai! !e(en!ants.2$e Com&laint is !ismisse! as to !e(en!ants 3state o( Macario Nieveras an! Bernar!o Balagot. M- MN2. M- !enie!. Finall' t$e res&on!ent 9%!ge iss%e! an or!er !ate! December 1 1878 &rovi!ing t$at i( !e(en!ants m%nici&alit' an! Bislig (%rt$er ,is$ to &%rs%e t$e matter !is&ose! o( in t$e or!er o( 7%l' /G 1878 s%c$ s$o%l! be
118

elevate! to a $ig$er co%rt in accor!ance ,it$ t$e -%les o( Co%rt. Hence t$is &etition. *ss%e: 1. 6ON t$e res&on!ent co%rt committe! grave ab%se o( !iscretion ,$en it !e(erre! an! (aile! to resolve t$e !e(ense o( nonDs%abilit' o( t$e )tate amo%nting to lac+ o( 9%ris!iction in a motion to !ismiss. *n t$e case at bar t$e res&on!ent 9%!ge !e(erre! t$e resol%tion o( t$e !e(ense o( nonDs%abilit' o( t$e )tate amo%nting to lac+ o( 9%ris!iction %ntil trial. Ho,ever sai! res&on!ent 9%!ge (aile! to resolve s%c$ !e(ense &rocee!e! ,it$ t$e trial an! t$erea(ter ren!ere! a !ecision against t$e m%nici&alit' an! its !river. 2$e res&on!ent 9%!ge !i! not commit grave ab%se o( !iscretion ,$en in t$e e4ercise o( its 9%!gment it arbitraril' (aile! to resolve t$e vital iss%e o( nonD s%abilit' o( t$e )tate in t$e g%ise o( t$e m%nici&alit'. Ho,ever sai! 9%!ge acte! in e4cess o( $is 9%ris!iction ,$en in $is !ecision !ate! October 15 1878 $e $el! t$e m%nici&alit' liable (or t$e .%asiD!elict committe! b' its reg%lar em&lo'ee. 2$e !octrine o( nonDs%abilit' o( t$e )tate is e4&ressl' &rovi!e! (or in #rticle JK* )ection 1 o( t$e Constit%tion to ,it: "t$e )tate ma' not be s%e! ,it$o%t its consent." )tate! in sim&le &arlance t$e general r%le is t$at t$e )tate ma' not be s%e! e4ce&t ,$en it gives consent to be s%e!. Consent ta+es t$e (orm o( e4&ress or im&lie! consent. 34&ress consent ma' be embo!ie! in a general la, or a s&ecial la,. 2$e stan!ing consent o( t$e )tate to be s%e! in case o( mone' claims involving liabilit' arising (rom contracts is (o%n! in #ct No. 1581. # s&ecial la, ma' be &asse! to enable a &erson to s%e t$e government (or an allege! .%asiD!elict as in Merritt v. Government o( t$e =$ili&&ine *slan!s. Consent is im&lie! ,$en t$e government enters into b%siness contracts t$ereb' !escen!ing to t$e level o( t$e ot$er contracting &art' an! also ,$en t$e )tate (iles a com&laint t$%s o&ening itsel( to a co%nterclaim. M%nici&al cor&orations (or e4am&le li+e &rovinces an! cities are agencies o( t$e )tate ,$en t$e' are engage! in governmental (%nctions an! t$ere(ore s$o%l! en9o' t$e sovereign imm%nit' (rom s%it. Nevert$eless t$e' are s%b9ect to s%it even in t$e &er(ormance o( s%c$ (%nctions beca%se t$eir c$arter &rovi!e! t$at t$e' can s%e an! be s%e!.
# !istinction s$o%l! (irst be ma!e bet,een s%abilit' an!

liabilit'. ")%abilit' !e&en!s on t$e consent o( t$e state to be s%e! liabilit' on t$e a&&licable la, an! t$e establis$e! (acts. 2$e circ%mstance t$at a state is s%able !oes not necessaril' mean t$at it is liableA on t$e ot$er $an! it can never be $el! liable i( it !oes not (irst consent to be s%e!. Liabilit' is not conce!e! b' t$e mere (act t$at t$e state $as allo,e! itsel( to be s%e!. 6$en t$e state !oes ,aive its sovereign imm%nit' it is onl' giving t$e &lainti(( t$e c$ance to &rove i( it can t$at t$e !e(en!ant is liable." 6ON t$e m%nici&alit' is liable (or t$e torts committe! b' its em&lo'ee t$e test o( liabilit' o( t$e m%nici&alit' !e&en!s on ,$et$er or not t$e !river acting in be$al( o( t$e m%nici&alit' is &er(orming governmental or &ro&rietar' (%nctions. 2orio v. Fontanilla: t$e !istinction o( &o,ers becomes im&ortant (or &%r&oses o( !etermining t$e liabilit' o( t$e m%nici&alit' (or t$e acts o( its agents ,$ic$ res%lt in an in9%r' to t$ir! &ersons. Cit' o( Mo+omo v. Lo': "M%nici&al cor&orations e4ist in a !%al ca&acit' an! t$eir (%nctions are t,o(ol!. *n one t$e' e4ercise t$e rig$t s&ringing (rom sovereignt' an! ,$ile in t$e &er(ormance o( t$e !%ties &ertaining t$ereto t$eir acts are &olitical an! governmental. 2$eir o((icers an! agents in s%c$ ca&acit' t$o%g$ electe! or a&&ointe! b' t$em are nevert$eless &%blic (%nctionaries &er(orming a &%blic service an! as s%c$ t$e' are o((icers agents an! servants o( t$e state. *n t$e ot$er ca&acit' t$e m%nici&alities e4ercise a &rivate &ro&rietar' or cor&orate rig$t arising (rom t$eir e4istence as legal &ersons an! not as &%blic agencies. 2$eir o((icers an! agents in t$e &er(ormance o( s%c$ (%nctions act in be$al( o( t$e m%nici&alities in t$eir cor&orate or in!ivi!%al ca&acit' an! not (or t$e state or sovereign &o,er. *t $as alrea!' been remar+e! t$at m%nici&al cor&orations are s%able beca%se t$eir c$arters grant t$em t$e com&etence to s%e an! be s%e!. Nevert$eless t$e' are generall' not liable (or torts committe! b' t$em in t$e !isc$arge o( governmental (%nctions an! can be $el! ans,erable onl' i( it can be s$o,n t$at t$e' ,ere acting in a &ro&rietar' ca&acit'. *n &ermitting s%c$ entities to be s%e! t$e )tate merel' gives t$e claimant t$e rig$t to s$o, t$at t$e !e(en!ant ,as not acting in its governmental ca&acit'
/.
1/5

,$en t$e in9%r' ,as committe! or t$at t$e case comes %n!er t$e e4ce&tions recogniBe! b' la,. Failing t$is t$e claimant cannot recover. *n t$e case at bar t$e !river o( t$e !%m& tr%c+ o( t$e m%nici&alit' insists t$at "$e ,as on $is ,a' to t$e Nag%ilian river to get a loa! o( san! an! gravel (or t$e re&air o( )an Fernan!oHs m%nici&al streets." *n t$e absence o( an' evi!ence to t$e contrar' t$e reg%larit' o( t$e &er(ormance o( o((icial !%t' is &res%me! &%rs%ant to )ection 1;m< o( -%le 111 o( t$e -evise! -%les o( Co%rt. Hence 6e r%le t$at t$e !river o( t$e !%m& tr%c+ ,as &er(orming !%ties or tas+s &ertaining to $is o((ice. =ala(o4 et. al. v. =rovince o( *locos Norte t$e District 3ngineer an! t$e =rovincial 2reas%rer: t$at "t$e constr%ction or maintenance o( roa!s in ,$ic$ t$e tr%c+ an! t$e !river ,or+e! at t$e time o( t$e acci!ent are a!mitte!l' governmental activities." #(ter a care(%l e4amination o( e4isting la,s an! 9%ris&r%!ence 6e arrive at t$e concl%sion t$at t$e m%nici&alit' cannot be $el! liable (or t$e torts committe! b' its reg%lar em&lo'ee ,$o ,as t$en engage! in t$e !isc$arge o( governmental (%nctions. Hence t$e !eat$ o( t$e &assenger tragic an! !e&lorable t$o%g$ it ma' be im&ose! on t$e m%nici&alit' no !%t' to &a' monetar' com&ensation. &ernan o et al v. CA an Cit# o! *avao clearance (rom it nor ,it$ t$e +no,le!ge an! consent o( t$e mar+et master. *n (act t$e se&tic tan+ ,as (o%n! to be almost em&t' an! t$e victims ,ere &res%me! to be t$e ones ,$o !i! t$e reDem&t'ing. Dr. 7%an #bear o( t$e Cit' Healt$ O((ice a%to&sie! t$e bo!ies an! in $is re&orts &%t t$e ca%se o( !eat$ o( all (ive victims as gas&$'4iaH ca%se! b' t$e !imin%tion o( o4'gen s%&&l' in t$e bo!' ,or+ing belo, normal con!itions. 2$e l%ngs o( t$e (ive victims b%rst s,elle! in $emmorr$agic areas an! t$is ,as !%e to t$eir inta+e o( to4ic gas ,$ic$ in t$is case ,as s%l(i!e gas &ro!%ce! (rom t$e ,aste matter insi!e t$e se&tic tan+." 2C: !ismisse!. *#C?C#: reverse!. M-:reverse!. *ss%e: 1. 6ON Davao Cit' g%ilt' o( negligence in t$e case at bar. /. 6ON s%c$ negligence t$e imme!iate an! &ro4imate ca%se o( !eat$s o( t$e victims $ereo(. Negligence $as been !e(ine! as t$e (ail%re to observe (or t$e &rotection o( t$e interests o( anot$er &erson t$at !egree o( care &reca%tion an! vigilance ,$ic$ t$e circ%mstances 9%stl' !eman! ,$ereb' s%c$ ot$er &erson s%((ers in9%r'. @n!er t$e la, a &erson ,$o b' $is omission ca%ses !amage to anot$er t$ere being negligence is oblige! to &a' (or t$e !amage !one ;#rticle /17G Ne, Civil Co!e<. 2o be entitle! to !amages (or an in9%r' res%lting (rom t$e negligence o( anot$er a claimant m%st establis$ t$e relation bet,een t$e omission an! t$e !amage. He m%st !rove %n!er #rticle /178 o( t$e Ne, Civil Co!e t$at t$e !e(en!antHs negligence ,as t$e imme!iate an! &ro4imate ca%se o( $is in9%r'. =ro4imate ca%se $as been !e(ine! as t$at ca%se ,$ic$ in nat%ral an! contin%o%s se.%ence %nbro+en b' an' e((icient intervening ca%se &ro!%ces t$e in9%r' an! ,it$o%t ,$ic$ t$e res%lt ,o%l! not $ave occ%rre!. =roo( o( s%c$ relation o( ca%se an! e((ect is not an ar!%o%s one i( t$e claimant !i! not in an' ,a' contrib%te to t$e negligence o( t$e !e(en!ant. Ho,ever ,$ere t$e res%lting in9%r' ,as t$e &ro!%ct o( t$e negligence o( bot$ &arties t$ere e4ists a !i((ic%lt' to !iscern ,$ic$ acts s$all be consi!ere! t$e &ro4imate ca%se o( t$e acci!ent. =etitioners (a%lt t$e cit' government o( Davao (or (ailing to clean a se&tic tan+ (or t$e &erio! o( 18 'ears res%lting in an acc%m%lation o( $'!rogen s%l(i!e gas ,$ic$ +ille! t$e laborers. 2$e' conten! t$at s%c$ (ail%re ,as com&o%n!e!
Facts: On November 7 187C Bibiano Morta mar+et master o( t$e #g!ao =%blic Mar+et (ile! a re.%isition re.%est ,it$ t$e C$ie( o( =ro&ert' o( t$e Cit' 2reas%rerHs O((ice (or t$e reDem&t'ing o( t$e se&tic tan+ in #g!ao. #n invitation to bi! ,as iss%e! to #%relio Bert%lano Lito Catarsa Feliciano Bascon Fe!erico Bolo an! #ntonio )%Rer 7r. Bascon ,on t$e bi!. On November /G 187C Bascon ,as noti(ie! an! $e signe! t$e &%rc$ase or!er. Ho,ever be(ore s%c$ !ate s&eci(icall' on November // 187C bi!!er Bert%lano ,it$ (o%r ot$er com&anions namel' 7oselito Garcia 6illiam Liagoso #lberto Fernan!o an! 7ose Fa9ar!o 7r. ,ere (o%n! !ea! insi!e t$e se&tic tan+. 2$e bo!ies ,ere remove! b' a (ireman. One bo!' t$at o( 7oselito Garcia ,as ta+en o%t b' $is %ncle Danilo Garcia an! ta+en to t$e -egional Hos&ital b%t $e e4&ire! t$ere. 2$e Cit' 3ngineerHs o((ice investigate! t$e case an! learne! t$at t$e (ive victims entere! t$e se&tic tan+ ,it$o%t
1/1

b' t$e (act t$at t$ere ,as no ,arning sign o( t$e e4isting !anger an! no e((orts e4erte! b' t$e &%blic res&on!ent to ne%traliBe or ren!er $armless t$e e((ects o( t$e to4ic gas. 2$e' s%bmit t$at t$e &%blic res&on!entHs gross negligence ,as t$e &ro4imate ca%se o( t$e (atal inci!ent. 6e !o not s%bscribe to t$is vie,. 6$ile it ma' be tr%e t$at t$e &%blic res&on!ent $as been remiss in its !%t' to reDem&t' t$e se&tic tan+ ann%all' s%c$ negligence ,as not a contin%ing one. @&on learning (rom t$e re&ort o( t$e mar+et master abo%t t$e nee! to clean t$e se&tic tan+ o( t$e &%blic toilet in #g!ao =%blic Mar+et t$e &%blic res&on!ent imme!iatel' res&on!e! b' iss%ing invitations to bi! (or s%c$ service. 2$erea(ter it a,ar!e! t$e bi! to t$e lo,est bi!!er Mr. Feliciano Bascon. 2$e &%blic res&on!ent t$ere(ore lost no time in ta+ing %& reme!ial meas%res to meet t$e sit%ation. *t is li+e,ise an %n!is&%te! (act t$at !es&ite t$e &%blic res&on!entHs (ail%re to reDem&t' t$e se&tic tan+ since 18CG &eo&le in t$e mar+et $ave been %sing t$e &%blic toilet (or t$eir &ersonal necessities b%t $ave remaine! %nscat$e!. 2$e absence o( an' acci!ent ,as !%e to t$e &%blic res&on!entHs com&liance ,it$ t$e sanitar' an! &l%mbing s&eci(ications in constr%cting t$e toilet an! t$e se&tic tan+. Hence t$e to4ic gas (rom t$e ,aste matter co%l! not $ave lea+e! o%t beca%se t$e se&tic tan+ ,as airDtig$t. 2$e onl' in!ication t$at t$e se&tic tan+ in t$e case at bar ,as (%ll an! nee!e! em&t'ing ,as ,$en ,ater came o%t (rom it. :et even ,$en t$e se&tic tan+ ,as (%ll t$ere ,as no re&ort o( an' cas%alt' o( gas &oisoning !es&ite t$e &resence o( &eo&le living near it or &assing on to& o( it or %sing t$e &%blic toilet (or t$eir &ersonal necessities. =etitioners ma!e a lot o( (%ss over t$e lac+ o( an' ventilation &i&e in t$e toilet to em&$asiBe t$e negligence o( t$e cit' government an! &resente! ,itnesses to attest on t$is lac+. Ho,ever t$is strateg' bac+(ire! on t$eir (aces. 2$eir ,itnesses ,ere not e4&ert ,itnesses. On t$e ot$er $an! 3ngineer Demetrio #lin!a!a o( t$e cit' government testi(ie! an! !emonstrate! b' !ra,ings $o, t$e sa(et' re.%irements li+e emission o( gases in t$e constr%ction o( bot$ toilet an! se&tic tan+ $ave been com&lie! ,it$. He state! t$at t$e ventilation &i&e nee! not be constr%cte! o%tsi!e t$e b%il!ing as it co%l! also be embo!ie! in t$e $ollo, bloc+s as is %s%all' !one in resi!ential b%il!ings. 2$e &etitioners s%bmitte! no com&etent evi!ence to corroborate t$eir oral testimonies or reb%t t$e testimon' given b' 3ngr. #lin!a!a. 6e also !o not agree ,it$ t$e &etitionerHs s%bmission t$at ,arning signs o( no4io%s gas s$o%l! $ave been &%t %& in t$e toilet in a!!ition to t$e signs o( "M3N" an! "6OM3N" alrea!' in &lace in t$at area. 2oilets an! se&tic tan+s are not n%isances &er se as !e(ine! in #rticle G80 o( t$e Ne, Civil Co!e ,$ic$ ,o%l! necessitate ,arning signs (or t$e &rotection o( t$e &%blic. 6$ile t$e constr%ction o( t$ese &%blic (acilities !eman!s %tmost com&liance ,it$ sa(et' an! sanitar' re.%irements t$e &%tting %& o( ,arning signs is not one o( t$ose re.%irements. *n vie, o( t$is (act%al milie% it ,o%l! a&&ear t$at an acci!ent s%c$ as to4ic gas lea+age (rom t$e se&tic tan+ is %nli+el' to $a&&en %nless one removes its covers. 2$e acci!ent in t$e case at bar occ%rre! beca%se t$e victims on t$eir o,n an! ,it$o%t a%t$orit' (rom t$e &%blic res&on!ent o&ene! t$e se&tic tan+. Consi!ering t$e nat%re o( t$e tas+ o( em&t'ing a se&tic tan+ es&eciall' one ,$ic$ $as not been cleane! (or 'ears an or!inaril' &r%!ent &erson s$o%l! %n!o%bte!l' be a,are o( t$e atten!ant ris+s. 2$e victims are no e4ce&tionA more so ,it$ Mr. Bert%lano an ol! $an! in t$is +in! o( service ,$o is &res%me! to +no, t$e $aBar!s o( t$e 9ob. His (ail%re t$ere(ore an! t$at o( $is men to ta+e &reca%tionar' meas%res (or t$eir sa(et' ,as t$e &ro4imate ca%se o( t$e acci!ent. 2$e (atal acci!ent in t$is case ,o%l! not $ave $a&&ene! b%t (or t$e victimsH negligence. 2$%s t$e a&&ellate co%rt ,as correct to observe t$at: ". . . Co%l! t$e victims $ave !ie! i( t$e' !i! not o&en t$e se&tic tan+ ,$ic$ t$e' ,ere not in t$e (irst &lace a%t$oriBe! to o&enT 6$o bet,een t$e &assive ob9ect ;se&tic tan+< an! t$e active s%b9ect ;t$e victims $erein< ,$o $aving no a%t$orit' t$ere(ore arrogate! %nto t$emselves t$e tas+ o( o&ening t$e se&tic tan+ ,$ic$ ca%se! t$eir o,n !eat$s s$o%l! be res&onsible (or s%c$ !eat$s. Ho, co%l! t$e se&tic tan+ ,$ic$ $as been in e4istence since t$e 18C5Hs be t$e &ro4imate ca%se o( an acci!ent t$at occ%rre! onl' on November // 187CT 2$e st%bborn (act remains t$at since 18CG %& to occ%rrence o( t$e acci!ent in 187C no in9%r' nor !eat$ ,as ca%se! b' t$e se&tic tan+. 2$e onl' reasonable concl%sion t$at co%l! be !ra,n (rom t$e above is t$at t$e
1//

victims !eat$ ,as ca%se! b' t$eir o,n negligence in o&ening t$e se&tic tan+ . . ." =etitioners (%rt$er conten! t$at t$e (ail%re o( t$e mar+et master to s%&ervise t$e area ,$ere t$e se&tic tan+ is locate! is a re(lection o( t$e negligence o( t$e &%blic res&on!ent. 6e !o not t$in+ so. 2$e mar+et master +ne, t$at ,or+ on t$e se&tic tan+ ,as still (ort$coming. *t m%st be remembere! t$at t$e bi!!ing $a! 9%st been con!%cte!. #lt$o%g$ t$e ,inning bi!!er ,as alrea!' +no,n t$e a,ar! to $im ,as still to be ma!e b' t$e Committee on #,ar!s. @&on t$e ot$er $an! t$e acci!ent ,$ic$ be(ell t$e victims ,$o are not in an' ,a' connecte! ,it$ t$e ,inning bi!!er $a&&ene! be(ore t$e a,ar! co%l! be given. Consi!ering t$at t$ere ,as 'et no a,ar! an! or!er to commence ,or+ on t$e se&tic tan+ t$e !%t' o( t$e mar+et master or $is sec%rit' g%ar!s to s%&ervise t$e ,or+ co%l! not $ave starte!. #lso t$e victims co%l! not $ave been seen ,or+ing in t$e area beca%se t$e se&tic tan+ ,as $i!!en b' a garbage storage ,$ic$ is more or less ten ;15< meters a,a' (rom t$e com(ort room itsel(. 2$e s%rre&titio%s ,a' in ,$ic$ t$e victims !i! t$eir 9ob ,it$o%t clearance (rom t$e mar+et master or an' o( t$e sec%rit' g%ar!s goes against t$eir goo! (ait$. 3ven t$eir relatives or (amil' members !i! not +no, o( t$eir &lan to clean t$e se&tic tan+. Finall' &etitioners insistence on t$e a&&licabilit' o( #rticle /0 o( t$e Ne, Civil Co!e cannot be s%staine!. )ai! la, states: "#rt. /0. *n all contract%al &ro&ert' or ot$er relations ,$en one o( t$e &arties is at a !isa!vantage on acco%nt o( $is moral !e&en!ence ignorance in!igence mental ,ea+ness ten!er age or ot$er $an!ica& t$e co%rts m%st be vigilant (or $is &rotection." 6e a&&rove o( t$e a&&ellate co%rtHs r%ling t$at ";,<$ile one o( t$e victims ,as invite! to bi! (or sai! &ro9ect $e !i! not ,in t$e bi! t$ere(ore t$ere is a total absence o( contract%al relations bet,een t$e victims an! t$e Cit' Government o( Davao Cit' t$at co%l! give rise to an' contract%al obligation m%c$ less an' liabilit' on t$e &art o( Davao Cit'." 2$e acci!ent ,as in!ee! tragic an! 6e em&at$iBe ,it$ t$e &etitioners. Ho,ever t$e $erein circ%mstances lea! @s to no ot$er concl%sion t$an t$at t$e &ro4imate an! imme!iate ca%se o( t$e !eat$ o( t$e victims ,as !%e to t$eir o,n negligence. Conse.%entl' t$e &etitioners cannot !eman! !amages (rom t$e &%blic res&on!ent. 'uzon an Mapagu v. CA an +ura o /supra- see p. 1
'orio v. &intanilla Facts: On October /1 18C8 t$e M%nici&al Co%ncil o( Malasi.%i =angasinan &asse! -esol%tion No. 1C8 ,$ereb' "it resolve! to manage t$e 18C8 Malasi.%i to,n (iesta celebration on 7an%ar' /1 // an! /1 18C8." -esol%tion No. 18/ ,as also &asse! creating t$e "18C8 Malasi.%i 2o,n Fiesta 34ec%tive Committee" ,$ic$ in t%rn organiBe! a s%bcommittee on entertainment an! stage ,it$ 7ose Macaraeg as C$airman. 2$e co%ncil a&&ro&riate! t$e amo%nt o( =155.55 (or t$e constr%ction o( / stages one (or t$e "BarB%ela" an! anot$er (or t$e "cancionan". 2$e "BarB%ela" entitle! "Mi!as 34travanganBa" ,as !onate! b' an association o( Malasi.%i em&lo'ees o( t$e Manila -ailroa! Com&an' in Caloocan -iBal. 2$e tro%&e arrive! in t$e evening o( 7an%ar' // (or t$e &er(ormance an! one o( t$e members o( t$e gro%& ,as Kicente Fontanilla. 2$e &rogram starte! at abo%t 15:1C oHcloc+ t$at evening ,it$ some s&eec$es an! man' &ersons ,ent %& t$e stage. 2$e "BarB%ela" t$en began b%t be(ore t$e !ramatic &art o( t$e &la' ,as reac$e! t$e stage colla&se! an! Kicente Fontanilla ,$o ,as at t$e rear o( t$e stage ,as &inne! %n!erneat$. Fontanilla ,as ta+en to t$e )an Carlos General Hos&ital ,$ere $e !ie! in t$e a(ternoon o( t$e (ollo,ing !a'. 2$e $eirs o( Kicente Fontanilla (ile! a com&laint ,it$ t$e Co%rt o( First *nstance o( Manila on )e&tember 11 18C8 to recover !amages. 2C: 34ec%tive Committee a&&ointe! b' t$e m%nici&al co%ncil $a! e4ercise! !%e !iligence an! care li+e a goo! (at$er o( t$e (amil' in selecting a com&etent man to constr%ct a stage strong eno%g$ (or t$e occasion an! t$at i( it colla&se! t$at ,as !%e to (orces be'on! t$e control o( t$e committee on entertainment conse.%entl' t$e !e(en!ants ,ere not liable (or !amages (or t$e !eat$ o( Kicente Fontanilla. 2$e com&laint ,as accor!ingl' !ismisse! in a !ecision !ate! 7%l' 15 18G/. C# reverse!. *ss%e: *s t$e celebration o( a to,n (iesta an %n!erta+ing in t$e e4ercise o( a m%nici&alit'Hs governmental or &%blic (%nction or is it o( a &rivate or &ro&rietar' c$aracterT
1/1
Mabelle O. Nebres | Local Governments Case Digests Hol!ing o( t$e to,n (iesta in 18C8 b' t$e m%nici&alit' o(
Malasi.%i =angasinan ,as an e4ercise o( a &rivate or &ro&rietar' (%nction o( t$e m%nici&alit'. C$a&ter on M%nici&al La, o( t$e -evise! #!ministrative Co!e &rovi!es: )ection //8/. Celebration o( (iesta. # (iesta ma' be $el! in eac$ m%nici&alit' not o(tener t$an once a 'ear %&on a !ate (i4e! b' t$e m%nici&al co%ncil. # (iesta s$all not be $el! %&on an' ot$er !ate t$an t$at la,(%ll' (i4e! t$ere(or e4ce&t ,$en (or ,eig$t' reasons s%c$ as t'&$oons in%n!ations eart$.%a+es e&i!emics or ot$er &%blic calamities t$e (iesta cannot be $el! in t$e !ate (i4e! in ,$ic$ case it ma' be $el! at a later !ate in t$e same 'ear b' resol%tion o( t$e co%ncil." 2$is &rovision sim&l' gives a%t$orit' to t$e m%nici&alit' to accelebrate a 'earl' (iesta b%t it !oes not im&ose %&on it a !%t' to observe one. Hol!ing a (iesta even i( t$e &%r&ose is to commemorate a religio%s or $istorical event o( t$e to,n is in essence an act (or t$e s&ecial bene(it o( t$e comm%nit' an! not (or t$e general ,el(are o( t$e &%blic &er(orme! in &%rs%ance o( a &olic' o( t$e state. 2$e mere (act t$at t$e celebration as claime! ,as not to sec%re &ro(it or gain b%t merel' to &rovi!e entertainment to t$e to,n in$abitants is not a concl%sive test. For instance t$e maintenance o( &ar+s is not a so%rce o( income (or t$e to,n nonet$eless it is &rivate %n!erta+ing as !isting%is$e! (rom t$e maintenance o( &%blic sc$ools 9ails an! t$e li+e ,$ic$ are (or &%blic service. 2$ere can be no $ar! an! (ast r%le (or &%r&oses o( !etermining t$e tr%e nat%re o( an %n!erta+ing or (%nction o( a m%nici&alit'A t$e s%rro%n!ing circ%mstances o( a &artic%lar case are to be consi!ere! an! ,ill be !ecisive. 2$e basic element $o,ever bene(icial to t$e &%blic t$e %n!erta+ing ma' be is t$at it is governmental in essence ot$er,ise t$e (%nction becomes &rivate or &ro&rietar' in c$aracter. 3asil' no governmental or &%blic &olic' o( t$e state is involve! in t$e celebration o( a to,n (iesta. 6ON %n!er t$e !octrine o( res&on!ent s%&erior &etitionerD m%nici&alit' is to be $el! liable (or !amages (or t$e !eat$ o( Kicente Fontanilla i( t$at ,as attrib%table to t$e negligence o( t$e m%nici&alit'Hs o((icers em&lo'ees or agents. :3). "#rt. /17G Civil Co!e: 6$oever b' act or omission ca%ses !amage to anot$er t$ere being (a%lt or negligence is oblige! to &a' (or t$e !amage !one. . . ." "#rt. /185. Civil Co!e: 2$e obligation im&ose! b' article /17G is !eman!able not onl' (or oneHs o,n acts or omission b%t also (or t$ose o( &ersons (or ,$om one is res&onsible . . ." On t$is &oint t$e Co%rt o( #&&eals (o%n! an! $el! t$at t$ere ,as negligence. 2$e trial co%rt gave cre!ence to t$e testimon' o( #ngel Nova!o a ,itness o( t$e !e(en!ants ;no, &etitioners< t$at a member o( t$e "e4travaganBa tro%&e" remove! t,o &rinci&al braces locate! on t$e (ront &ortion o( t$e stage an! %se! t$em to $ang t$e screen or "telon" an! t$at ,$en man' &eo&le ,ent %& t$e stage t$e latter colla&se!. 2$is testimon' ,as not believe! $o,ever b' res&on!ent a&&ellate co%rt an! rig$tl' so. #ccor!ing to sai! !e(en!ants t$ose t,o braces ,ere "mot$er" or "&rinci&al" braces locate! semiD!iagonall' (rom t$e (ront en!s o( t$e stage to t$e (ront &osts o( t$e tic+et boot$ locate! at t$e rear o( t$e stage an! ,ere (astene! ,it$ a bamboo t,ine. 2$at being t$e case it becomes incre!ible t$at an' &erson in $is rig$t min! ,o%l! remove t$ose &rinci&al braces an! leave t$e (ront &ortion o( t$e stage &racticall' %ns%&&orte!. Moreover i( t$at !i! $a&&en t$ere ,as in!ee! negligence as t$ere ,as lac+ o( s%&ervision over t$e %se o( t$e stage to &revent s%c$ an occ%rrence. #t an' rate t$e g%itarist ,$o ,as &ointe! to b' Nova!o as t$e &erson ,$o remove! t$e t,o bamboo braces !enie! $aving !one so. 2$e Co%rt o( #&&eals sai!. "#mor b' $imsel( alone co%l! not $ave remove! t$e t,o braces ,$ic$ m%st be abo%t ten meters long an! (astene! t$em on to& o( t$e stage (or t$e c%rtain. 2$e stage ,as onl' (ive an! a $al( meters ,i!e )%rel' it ,o%l! be im&ractical an! %n,iel!' to %se a ten meter bamboo &ole m%c$ more t,o &oles (or t$e stage c%rtain." 2$e a&&ellate co%rt also (o%n! t$at t$e stage ,as not strong eno%g$ consi!ering t$at onl' =155.55 ,as a&&ro&riate (or t$e constr%ction o( t,o stages an! ,$ile t$e (loor o( t$e "BarB%ela" stage ,as o( ,oo!en &lan+s t$e &osts an! braces %se! ,ere o( bamboo material. 6e li+e,ise observe t$at alt$o%g$ t$e stage ,as !escribe! b' t$e &etitioners as being s%&&orte! b' "/0" &osts nevert$eless t$ere ,ere onl' 0 in (ront 0 at t$e rear an! C on eac$ si!e. 6$ere ,ere t$e restT 2$e Co%rt o( #&&eals t$%s concl%!e!: "2$e co%rt a .%o itsel( attrib%te! t$e colla&se o( t$e stage to t$e great n%mber o(
/.
1/0

onloo+ers ,$o mo%nte! t$e stage. 2$e m%nici&alit' an!?or its agents $a! t$e necessar' means ,it$in its comman! to &revent s%c$ an occ%rrence. Having (aile! to ta+e t$e necessar' ste&s to maintain t$e sa(et' o( t$e stage (or t$e %se o( t$e &artici&ants in t$e stage &resentation &re&are! in connection ,it$ t$e celebration o( t$e to,n (iesta &artic%larl' in &reventing non&artici&ants or s&ectators (rom mo%nting an! acc%m%lating on t$e stage ,$ic$ ,as not constr%cte! to meet t$e a!!itional ,eig$t t$e !e(en!antsDa&&ellees ,ere negligent an! are liable (or t$e !eat$ o( Kicente Fontanilla." 2$e (in!ings o( t$e res&on!ent a&&ellate co%rt t$at t$e (acts as &resente! to it establis$ negligence as a matter o( la, an! t$at t$e M%nici&alit' (aile! to e4ercise t$e !%e !iligence o( a goo! (at$er o( t$e (amil' ,ill not !ist%rbe! b' @s in t$e absence o( a clear s$o,ing o( an ab%se o( !iscretion or a gross misa&&re$ension o( (acts. Liabilit' rests on negligence ,$ic$ is "t$e ,ant o( s%c$ care as a &erson o( or!inar' &r%!ence ,o%l! e4ercise %n!er t$e circ%mstances o( t$e case." 2$%s &rivate res&on!ents arg%e t$at t$e "Mi!as 34travaganBa" ,$ic$ ,as to be &er(orme! !%ring t$e to,n (iesta ,as a "!onation" o((ere! b' an association o( Malasi.%i em&lo'ees o( t$e Manila -ailroa! Co. in Caloocan an! t$at ,$en t$e M%nici&alit' o( Malasi.%i acce&te! t$e !onation o( services an! constr%cte! &recisel' a "BarB%ela stage" (or t$e &%r&ose t$e &artici&ants in t$e stage s$o, $a! t$e rig$t to e4&ect t$at t$e M%nici&alit' t$ro%g$ its "Committee on entertainment an! stage" ,o%l! b%il! or &%t %& a stage or &lat(orm strong eno%g$ to s%stain t$e ,eig$t or b%r!en o( t$e &er(ormance an! ta+e t$e necessar' meas%res to ins%re t$e &ersonal sa(et' o( t$e &artici&ants. 6e agree. )an!ers v. Cit' o( Long Beac$ 180/ ,$ic$ ,as an action against t$e cit' (or in9%ries s%staine! (rom a (all ,$en &lainti(( ,as !escen!ing t$e ste&s o( t$e cit' a%!itori%m. 2$e cit' ,as con!%cting a "Mno, 'o%r Cit' 6ee+" an! one o( t$e (eat%res ,as t$e s$o,ing o( a motion &ict%re in t$e cit' a%!itori%m to ,$ic$ t$e general &%blic ,as invite! an! &lainti(( )an!ers ,as one o( t$ose ,$o atten!e!. *n s%staining t$e a,ar! (or !amages in (avor o( &lainti(( t$e District Co%rt o( #&&eal )econ! !istrict Cali(ornia $el! inter alia t$at t$e "Mno, 'o%r Cit' 6ee+" ,as a "&ro&rietar' activit'" an! not a "governmental one" o( t$e cit' t$at !e(en!ant o,e! to &lainti(( an "invitee" t$e !%t' o( e4ercising or!inar' care (or $er sa(et' an! &lainti(( ,as entitle! to ass%me t$at s$e ,o%l! not be e4&ose! to a !anger ;,$ic$ in t$is case consiste! o( lac+ o( s%((icient ill%mination o( t$e &remises< t$at ,o%l! come to $er t$ro%g$ a violation o( !e(en!antHs !%t'. 6e can sa' t$at t$e !ecease! Kicente Fontanilla ,as similarl' sit%ate! as )an!ers. 2$e M%nici&alit' o( Malasi.%i resolve! to celebrate t$e to,n (iesta in 7an%ar' o( 18C8A it create! a committee in c$arge o( t$e entertainment an! stageA an association o( Malasi.%i resi!ents res&on!e! to t$e call (or t$e (estivities an! vol%nteere! to &resent a stage s$o,A Kicente Fontanilla ,as one o( t$e &artici&ants ,$o li+e )an!ers $a! t$e rig$t to e4&ect t$at $e ,o%l! be e4&ose! to !anger on t$at occasion. Lastl' &etitioner or a&&ellant M%nici&alit' cannot eva!e res&onsibilit' an!?or liabilit' %n!er t$e claim t$at it ,as 7ose Macaraeg ,$o constr%cte! t$e stage. 2$e m%nici&alit' acting t$ro%g$ its m%nici&al co%ncil a&&ointe! Macaraeg as c$airman o( t$e s%bDcommittee on entertainment an! in c$arge o( t$e constr%ction o( t$e "BarB%ela" stage. Macaraeg acte! merel' as an agent o( t$e M%nici&alit'. @n!er t$e !octrine o( res&on!ent s%&erior mentione! earlier &etitioner is res&onsible or liable (or t$e negligence o( its agent acting ,it$in $is assigne! tas+s. ". . . ,$en it is so%g$t to ren!er a m%nici&al cor&oration liable (or t$e act o( servants or agents a car!inal in.%ir' is ,$et$er t$e' are t$e servants or agents o( t$e cor&oration. *( t$e cor&oration a&&oints or elects t$em can control t$em in t$e !isc$arge o( t$eir !%ties can contin%e or remove t$em can $ol! t$em res&onsible ( or t$e manner in ,$ic$ t$e' !isc$arge t$eir tr%st an! i( t$ose !%ties relate to t$e e4ercise o( cor&orate &o,ers an! are (or t$e &ec%liar bene(it o( t$e cor&oration in its local or s&ecial interest t$e' ma' 9%stl' be regar!e! as its agents or servants an! t$e ma4im o( res&on!ent s%&erior a&&lies." 6ON m%nici&alit' co%ncilors ,$o enacte! t$e or!inance an! create! t$e (iesta committee are liable. 2$e Co%rt o( #&&eals $el! t$e co%ncilors 9ointl' an! soli!aril' liable ,it$ t$e m%nici&alit' (or !amages %n!er
/.
1/C

#rticle /7 o( t$e Civil Co!e ,$ic$ &rovi!es t$at "an' &erson s%((ering material or moral loss beca%se a &%blic servant or em&lo'ee re(%ses or neglects ,it$o%t 9%st ca%se to &er(orm $is o((icial !%t' ma' (ile an action (or !amages an! ot$er relie( against t$e latter." *n t$eir =etition (or revie, t$e m%nici&al co%ncilors allege t$at t$e Co%rt o( #&&eals erre! in r%ling t$at t$e $ol!ing o( a to,n (iesta is not a governmental (%nction an! t$at t$ere ,as negligence on t$eir &art (or not maintaining an! s%&ervising t$e sa(e %se o( t$e stage in a&&l'ing #rticle /7 o( t$e Civil Co!e against t$em an! in not $ol!ing 7ose Macaraeg liable (or t$e colla&se o( t$e stage an! t$e conse.%ent !eat$ o( Kicente Fontanilla. 6e agree ,it$ &etitioners t$at t$e Co%rt o( #&&eals erre! in a&&l'ing #rticle /7 o( t$e Civil Co!e against t$em (or t$is &artic%lar article covers a case o( nonD(easance or nonD &er(ormance b' a &%blic o((icer o( $is o((icial !%t'A it !oes not a&&l' to a case o( negligence or mis(easance in carr'ing o%t an o((icial !%t'. *( 6e are le! to set asi!e t$e !ecision o( t$e Co%rt o( #&&eals inso(ar as t$ese &etitioners are concerne! it is beca%se o( &lain error committe! b' res&on!ent co%rt ,$ic$ $o,ever is not invo+e! in &etitionersH brie(. Mig%el v. C#: t$e )%&reme Co%rt is veste! ,it$ am&le a%t$orit' to revie, matters not assigne! as errors in an a&&eal i( it (in!s t$at t$eir consi!eration an! resol%tion are in!is&ensable or necessar' in arriving at a 9%st !ecision in a given case an! t$at t$is is a%t$oriBe! %n!er )ec. 7 -%le C1 o( t$e -%les o( Co%rt. 6e believe t$at t$is &rono%ncement can ,ell be a&&lie! in t$e instant case. 2$e Co%rt o( #&&eals in its !ecision no, %n!er revie, $el! t$at t$e celebration o( a to,n (iesta b' t$e M%nici&alit' o( Malasi.%i ,as not a governmental (%nction. 6e %&$el! t$at r%ling. 2$e legal conse.%ence t$ereo( is t$at t$e M%nici&alit' stan!s on t$e same (ooting as an or!inar' &rivate cor&oration ,it$ t$e m%nici&al co%ncil acting as its boar! o( !irectors. *t is an elementar' &rinci&le t$at a cor&oration $as a &ersonalit' se&arate an! !istinct (rom its o((icers !irectors or &ersons com&osing it an! t$e latter are not as a r%le coDres&onsible in an action (or !amages (or tort or negligence ;c%l&a a.%iliana< committe! b' t$e cor&orationHs em&lo'ees or agents %nless t$ere is a s$o,ing o( ba! (ait$ or gross or ,anton negligence on t$eir &art. "2$e or!inar' !octrine is t$at a Director merel' b' reason o( $is o((ice is not &ersonall' liable (or t$e torts o( $is cor&orationA $e m%st be s$o,n to $ave &ersonall' vote! (or or ot$er,ise &artici&ate! in t$em." "O((icers o( a cor&oration Hare not $el! liable (or t$e negligence o( t$e cor&oration merel' beca%se o( t$eir o((icial relation to it b%t beca%se o( some ,rong(%l or negligent act b' s%c$ o((icer amo%nting to a breac$ o( !%t' ,$ic$ res%lte! in an in9%r' . . . 2o ma+e an o((icer o( a cor&oration liable (or t$e negligence o( t$e cor&oration t$ere m%st $ave been %&on $is &art s%c$ a breac$ o( !%t' as contrib%te! to or $el&e! to bring abo%t t$e in9%r'A t$at is to sa' $e m%st be a &artici&ant in t$e ,rong(%l act." "Directors ,$o merel' em&lo' one to give n (ire,or+s e4$ibition on t$e cor&orate gro%n!s are not &ersonall' liable (or t$e negligent acts o( t$e e4$ibitor." On t$ese &rinci&les 6e absolve t$e m%nici&al co%ncilors (rom an' liabilit' (or t$e !eat$ o( Kicente Fontanilla. 2$e recor!s !o not s$o, t$at sai! &etitioners !irectl' &artici&ate! in t$e !e(ective constr%ction o( t$e "BarB%ela" stage or t$at t$e' &ersonall' &ermitte! s&ectators to go %& t$e &lat(orm. 'eotico v. Cit# o! Manila Facts: On 7an%ar' /7 18C8 at abo%t 8:55 &.m. 2eotico ,as at t$e corner o( t$e Ol! L%neta an! =. B%rgos #ven%e Manila ,it$in a "loa!ing an! %nloa!ing" Bone ,aiting (or a 9ee&ne' to ta+e $im !o,n to,n. #(ter ,aiting (or abo%t (ive min%tes $e manage! to $ail a 9ee&ne' t$at came along to a sto&. #s $e ste&&e! !o,n (rom t$e c%rb to boar! t$e 9ee&ne' an! too+ a (e, ste&s $e (ell insi!e an %ncovere! an! %nlig$te! catc$basin or man$ole on =. B%rgos #ven%e. D%e to t$e (all $is $ea! $it t$e rim o( t$e man$ole brea+ing $is e'eglasses an! ca%sing bro+en &ieces t$ereo( to &ierce $is le(t e'eli!. #s bloo! (lo,e! t$ere(rom im&airing $is vision several &ersons came to $is assistance an! &%lle! $im o%t o( t$e man$ole. One o( t$em bro%g$t 2eotico to t$e =$ili&&ine General Hos&ital ,$ere $is in9%ries ,ere treate! a(ter ,$ic$ $e ,as ta+en $ome. *n a!!ition to t$e lacerate! ,o%n! in $is le(t %&&er e'eli! 2eotico s%((ere! cont%sions on t$e le(t t$ig$ t$e le(t
1/G

%&&er arm t$e rig$t leg an! t$e %&&er li& a&art (rom an abrasion on t$e rig$t in(raD&atella region. 2$ese in9%ries an! t$e allergic er%&tions ca%se! b' antiDtetan%s in9ections a!ministere! to $im in t$e $os&ital re.%ire! (%rt$er me!ical treatment b' a &rivate &ractitioner ,$o c$arge! t$ere(or =1 055.55. #s a conse.%ence o( t$e (oregoing occ%rrence 2eotico (ile! ,it$ t$e Co%rt o( First *nstance o( Manila a com&laint S ,$ic$ ,as s%bse.%entl' amen!e! S (or !amages against t$e Cit' o( Manila its ma'or cit' engineer cit' $ealt$ o((icer cit' treas%rer an! c$ie( o( &olice. #s state! in t$e !ecision o( t$e trial co%rt an! .%ote! ,it$ a&&roval b' t$e Co%rt o( #&&eals "#t t$e time o( t$e inci!ent &lainti(( ,as a &racticing &%blic acco%ntant a b%sinessman an! a &ro(essor at t$e @niversit' o( t$e 3ast. He $el! res&onsible &ositions in vario%s b%siness (irms li+e t$e =$ili&&ine Merc$an!ising Co. t$e #. @. Kalencia an! Co. t$e )ilver ),an Man%(act%ring Com&an' an! t$e )incere =ac+ing Cor&oration. He ,as also associate! ,it$ several civic organiBations s%c$ as t$e 6ac+ 6ac+ Gol( Cl%b t$e C$amber o( Commerce o( t$e =$ili&&ines :Hs Men Cl%b o( Manila an! t$e Mnig$tHs o( -iBal. #s a res%lt o( t$e inci!ent &lainti(( ,as &revente! (rom engaging in $is c%stomar' occ%&ation (or t,ent' !a's. =lainti(( $as lost a !ail' income o( abo%t =C5.55 !%ring $is inca&acit' to ,or+. Beca%se o( t$e inci!ent $e ,as s%b9ecte! to $%miliation an! ri!ic%le b' $is b%siness associates an! (rien!s. D%ring t$e &erio! o( $is treatment &lainti(( ,as %n!er constant (ear an! an4iet' (or t$e ,el(are o( $is minor c$il!ren since $e ,as t$eir onl' s%&&ort. D%e to t$e (iling o( t$is case &lainti(( $as obligate! $imsel( to &a' $is co%nsel t$e s%m o( =/ 555.55. "On t$e ot$er $an! t$e !e(ense &resente! evi!ence oral an! !oc%mentar' to &rove t$at t$e )torm Drain )ection O((ice o( t$e Cit' 3ngineer o( Manila receive! a re&ort o( t$e %ncovere! con!ition o( a catc$basin at t$e corner o( =. B%rgos an! Ol! L%neta )treets Manila on 7an%ar' /0 18C8 b%t t$e same ,as covere! on t$e same !a'A t$at again t$e iron cover o( t$e same catc$basin ,as re&orte! missing on 7an%ar' 15 18C8 b%t t$e sai! cover ,as re&lace! t$e ne4t !a'A t$at t$e O((ice o( t$e Cit' 3ngineer never receive! an' re&ort to t$e e((ect t$at t$e catc$basin in .%estion ,as not covere! bet,een 7an%ar' /C an! /8 18C8A t$at it $as al,a's been a &olic' o( t$e sai! o((ice ,$ic$ is c$arge! ,it$ t$e !%t' o( installation re&air an! care o( storm !rains in t$e Cit' o( Manila t$at ,$enever a re&ort is receive! (rom ,$atever so%rce o( t$e loss o( a catc$basin cover t$e matter is imme!iatel' atten!e! to eit$er b' imme!iatel' re&lacing t$e missing cover or covering t$e catc$basin ,it$ steel mattingA t$at beca%se o( t$e l%crative scra& iron b%siness t$en &revailing stealing o( iron catc$basin covers ,as ram&antA t$at t$e O((ice o( t$e Cit' 3ngineer $as (ile! com&laints in co%rt res%lting (rom t$e(t o( sai! iron coversA t$at in or!er to &revent s%c$ t$e(ts t$e cit' government $as c$ange! t$e &osition an! la'o%t o( catc$ basins in t$e Cit' b' constr%cting t$em %n!er t$e si!e,al+ ,it$ concrete cement covers an! o&enings on t$e si!es o( t$e g%tterA an! t$at t$ese c$anges $a! been %n!erta+en b' t$e cit' (rom time to time ,$enever (%n!s ,ere available." #(ter a&&ro&riate &rocee!ings t$e Co%rt o( First *nstance o( Manila ren!ere! t$e a(orementione! !ecision s%staining t$e t$eor' o( t$e !e(en!ants an! !ismissing t$e amen!e! com&laint ,it$o%t costs. On a&&eal ta+en b' &lainti(( t$is !ecision ,as a((irme! b' t$e Co%rt o( #&&eals e4ce&t inso(ar as t$e Cit' o( Manila is concerne! ,$ic$ ,as sentence! to &a' !amages in t$e aggregate s%m o( =G 7C5.55. Hence t$is a&&eal b' t$e Cit' o( Manila. *ss%e: 1. *s t$e case is governe! b' )ection 0 o( -# 058 ;C$arter o( t$e Cit' o( Manila< or #rticle /188 CC. )ec 0 -# 058: "2$e cit' s$all not be liable or $el! (or !amages or in9%ries to &ersons or &ro&ert' arising (rom t$e (ail%re o( t$e Ma'or t$e M%nici&al Boar! or an' ot$er cit' o((icer to en(orce t$e &rovisions o( t$is c$a&ter or an' ot$er la, or or!inance or (rom negligence o( sai! Ma'or M%nici&al Boar! or ot$er o((icers ,$ile en(orcing or attem&ting to en(orce sai! &rovisions." /188: "=rovinces cities an! m%nici&alities s$all be liable (or !amages (or t$e !eat$ o( or in9%ries s%((ere! b' an' &erson b' reason o( t$e !e(ective con!ition o( roa!s streets bri!ges &%blic b%il!ings an! ot$er &%blic ,or+s %n!er t$eir control or s%&ervision." Manila maintains t$at t$e (ormer &rovision s$o%l! &revail over t$e latter beca%se -e&%blic #ct 058 is a s&ecial la, inten!e! e4cl%sivel' (or t$e Cit' o( Manila ,$ereas t$e Civil Co!e is a general la, a&&licable to t$e entire =$ili&&ines. 2$e Co%rt o( #&&eals $o,ever a&&lie! t$e Civil Co!e an! ,e t$in+ correctl'. *t is tr%e t$at inso(ar as its territorial a&&lication is concerne! -e&%blic #ct No. 058 is a s&ecial la, an! t$e Civil Co!e a general legislationA b%t as regar!s t$e s%b9ectD matter o( t$e &rovisions above .%ote! )ection
1/7

0 o( -e&%blic #ct 058 establis$es a general r%le reg%lating t$e liabilit' o( t$e Cit' o( Manila (or "!amages or in9%r' to &ersons or &ro&ert' arising (rom t$e (ail%re o(" cit' o((icers "to en(orce t$e &rovisions o(" sai! #ct "or an' ot$er la, or or!inance or (rom negligence" o( t$e cit' "Ma'or M%nici&al Boar! or ot$er o((icers ,$ile en(orcing or attem&ting to en(orce sai! &rovisions." @&on t$e ot$er $an! #rticle /188 o( t$e Civil Co!e constit%tes a &artic%lar &rescri&tion ma+ing "&rovinces cities an! m%nici&alities . . . liable (or !amages (or t$e !eat$ o( or in9%r' s%((ere! b' an' &erson b' reason" S s&eci(icall' S "o( t$e !e(ective con!ition o( roa!s streets bri!ges &%blic b%il!ings an! ot$er &%blic ,or+s %n!er t$eir control or s%&ervision." *n ot$er ,or!s sai! section 0 re(ers to liabilit' arising (rom negligence in general regar!less o( t$e ob9ect t$ereo( ,$ereas #rticle /188 governs liabilit' !%e to "!e(ective streets "in &artic%lar. )ince t$e &resent action is base! %&on t$e allege! !e(ective con!ition o( a roa! sai! #rticle /188 is !ecisive t$ereon. /. 6on t$e Cit' cannot be $el! liable (or !amages beca%se t$e inci!ent involving $im too+ &lace in a national $ig$,a' an! beca%se t$e it $as not been negligent in connection t$ere,it$. )%c$ is base! %&on an allegation o( (act not ma!e in t$e ans,er o( t$e Cit'. Moreover 2eotico allege! in $is com&laint as ,ell as in $is amen!e! com&laint t$at $is in9%ries ,ere !%e to t$e !e(ective con!ition o( a street ,$ic$ is "%n!er t$e s%&ervision an! control" o( t$e Cit'. *n its ans,er to t$e amen!e! com&laint t$e Cit' in t%rn allege! t$at "t$e streets a(orementione! ,ere an! $ave been constantl' +e&t in goo! con!ition an! reg%larl' ins&ecte! an! t$e storm !rains an! man$oles t$ereo( covere! b' t$e !e(en!ant Cit' an! its o((icers concerne!" ,$o "$ave been ever vigilant an! Bealo%s in t$e &er(ormance o( t$eir res&ective (%nctions an! !%ties as im&ose! %&on t$em b' la,." 2$%s t$e Cit' $a! in e((ect a!mitte! t$at =. B%rgos #ven%e ,as an! is %n!er its control an! s%&ervision. Moreover t$e assertion to t$e e((ect t$at sai! aven%e is a national $ig$,a' ,as ma!e (or t$e (irst time in its motion (or reconsi!eration o( t$e !ecision o( t$e Co%rt o( #&&eals. )%c$ assertion raise! t$ere(ore a .%estion o( (act ,$ic$ $a! not been &%t in iss%e in t$e trial co%rt an! can not be set %& (or t$e (irst time on a&&eal m%c$ less a(ter t$e ren!ition o( t$e !ecision o( t$e a&&ellate co%rt in a motion (or t$e reconsi!eration t$ereo(. #t an' rate %n!er #rticle /188 o( t$e Civil Co!e it is not necessar' (or t$e liabilit' t$erein establis$e! to attac$ t$at t$e !e(ective roa!s or streets belong to t$e &rovince cit' or m%nici&alit' (rom ,$ic$ res&onsibilit' is e4acte!. 6$at sai! article re.%ires is t$at t$e &rovince cit' or m%nici&alit' $ave eit$er "control or s%&ervision" over sai! street or roa!. 3ven i( =. B%rgos aven%e ,ere t$ere(ore a national $ig$,a' t$is circ%mstance ,o%l! not necessaril' !etract (rom its "control or s%&ervision" b' t$e Cit' o( Manila %n!er -e&%blic #ct 058. *n (act )ection 18;4< t$ereo( &rovi!es: Legislative &o,ers. S 2$e M%nici&al Boar! s$all $ave t$e (ollo,ing legislative &o,ers: ;4< )%b9ect to t$e &rovisions o( e4isting la, to &rovi!e (or t$e la'ing o%t constr%ction an! im&rovement an! to reg%late t$e %se o( streets aven%es alle's si!e,al+s ,$arves &iers &ar+s cemeteries an! ot$er &%blic &lacesA to &rovi!e (or lig$ting cleaning an! s&rin+ling o( streets an! &%blic &lacesA . . . to &rovi!e (or t$e ins&ection o( (i4 t$e license (ees (or an! reg%late t$e o&enings in t$e same (or t$e la'ing o( gas ,ater se,er an! ot$er &i&es t$e b%il!ing an! re&air o( t%nnels se,ers an! !rains an! all str%ct%res in an! %n!er t$e same an! t$e erecting o( &oles an! t$e stringing o( ,ires t$ereinA to &rovi!e (or an! reg%late crossD,al+s c%rbs an! g%tters t$ereinA . . . to reg%late tra((ic an! sales %&on t$e streets an! ot$er &%blic &lacesA to &rovi!e (or t$e abatement o( n%isances in t$e same an! &%nis$ t$e a%t$ors or o,ners t$ereo(A to &rovi!e (or t$e constr%ction an! maintenance an! reg%late t$e %se o( bri!ges via!%cts an! c%lvertsA to &ro$ibit an! reg%late ball &la'ing +ite(l'ing $oo& rolling an! ot$er am%sements ,$ic$ ma' anno' &ersons %sing t$e streets an! &%blic &laces or (rig$ten $orses or ot$er animalsA to reg%late t$e s&ee! o( $orses an! ot$er animals motor an! ot$er ve$icles cars an! locomotives ,it$in t$e limits o( t$e cit'A to reg%late t$e lig$ts %se! on all s%c$ ve$icles cars an! locomotivesA . . . to &rovi!e (or an! c$ange t$e location gra!e an! crossing o( railroa!s an! com&el an' s%c$ railroa! to raise or lo,er its trac+s to con(orm to s%c$ &rovisions or c$angesA an! to re.%ire railroa! com&anies to (ence t$eir &ro&ert' or an' &art t$ereo( to &rovi!e s%itable &rotection against in9%r' to
1/8

&ersons or &ro&ert' an! to constr%ct an! re&air !itc$es !rains se,ers an! c%lverts along an! %n!er t$eir tracts so t$at t$e nat%ral !rainage o( t$e streets an! a!9acent &ro&ert' s$all not be obstr%cte!." 2$is a%t$orit' $as been neit$er ,it$!ra,n nor restricte! b' -e&%blic #ct No. 817 an! 34ec%tive Or!er No. 111 !ate! Ma' / 18CC %&on ,$ic$ t$e Cit' relies. )ai! #ct governs t$e !is&osition or a&&ro&riation o( t$e $ig$,a' (%n!s an! t$e giving o( ai! to &rovinces c$artere! cities an! m%nici&alities in t$e constr%ction o( roa!s an! streets ,it$in t$eir res&ective bo%n!aries an! 34ec%tive Or!er No. 111 merel' im&lements t$e &rovisions o( sai! -e&%blic #ct No. 817 concerning t$e !is&osition an! a&&ro&riation o( t$e $ig$,a' (%n!s. Moreover it &rovi!es t$at "t$e constr%ction maintenance an! im&rovement o( national &rimar' national secon!ar' an! national ai! &rovincial an! cit' roa!s s$all be accom&lis$e! b' t$e Hig$,a' District 3ngineers an! Hig$,a' Cit' 3ngineers %n!er t$e s%&ervision o( t$e Commissioner o( =%blic Hig$,a's an! s$all be (inance! (rom s%c$ a&&ro&riations as ma' be a%t$oriBe! b' t$e -e&%blic o( t$e =$ili&&ines in ann%al or s&ecial a&&ro&riation #cts." 2$en again t$e !etermination o( ,$et$er or not =. B%rgos #ven%e is %n!er t$e control or s%&ervision o( t$e Cit' o( Manila an! ,$et$er t$e latter is g%ilt' o( negligence in connection ,it$ t$e maintenance o( sai! roa! ,$ic$ ,ere !eci!e! b' t$e Co%rt o( #&&eals in t$e a((irmative is one o( (act an! t$e (in!ings o( sai! Co%rt t$ereon are not s%b9ect to o%r revie,. Abella v. Cit# o! ,aga Facts: 2$e m%nici&alit' o( Naga b' resol%tion or!ere! t$e closing o( t$at &art o( a m%nici&al street ,$ic$ ran bet,een t$e &%blic mar+et an! t$e &lainti((Hs &ro&ert' an! %se! t$e close! t$oro%g$(are to e4&an! t$e mar+et. #s a conse.%ence o( t$is resol%tion an! imme!iatel' a(ter t$e &assage o( t$e same D sa's t$e agreement D &ermanent semiD&ermanent as ,ell as tem&orar' constr%ctions ,ere allo,e! b' t$e !e(en!ant m%nici&alit' o( Naga along t$e si!e,al+ o( =lainti((Hs &ro&ert' an! ab%tting to sai! &ro&ert' (acing =. =rieto )treet an! e4ten!ing o%t in t$e mi!!le o( t$e same street $ence !e&riving t$e &lainti((Hs &ro&ert' o( access to sai! street an! conse.%entl' retar!ing $er reconstr%ctions. "*t ,as (%rt$er sti&%late! "t$at i( all t$e !amages is to be a,ar!e! t$e &lainti(( t$e same s$o%l! not e4cee! t$e s%m o( 2$ree $%n!re! &esos ;=155<." Naga: "it acte! an! e4ercise! its &olice &o,er" "&rom&te! to &reserve t$e &eace an! goo! or!er o( t$e comm%nit' an! &romote t$e general ,el(areA" an! t$is being t$e case it believes t$at it is not liable (or !amages. *ss%e: 6ON Naga is liable. 2$e m%nici&alit' or cit' o( Naga ,as not c$arge! ,it$ an' %nla,(%l act or ,it$ acting ,it$o%t a%t$orit' or ,it$ invasion o( &lainti((Hs &ro&ert' rig$tsA t$e basis o( t$e lo,er co%rtHs !ecision in )ection //0G o( t$e -evise! #!ministrative Co!e co&ie! in a&&ellantHs brie( ,$ic$ &rovi!es t$at no m%nici&al roa! street etc. or an' &art t$ereo( "s$all be close! ,it$o%t in!emni('ing an' &erson &re9%!ice! t$ereb'." 2$e .%estion t$en (or !etermination b' t$e co%rt belo, ,as re!%ce! to ,$et$er t$e &lainti(( ,as &re9%!ice! b' !e(en!ant m%nici&alit'Hs action. 2$at s$e ,as economicall' !amage! t$e sti&%lation o( (acts a!mitsA an! t$at t$e in!emnit' assesse! is ,it$in t$e bo%n!s o( t$e !amages s%((ere! t$ere is no !is&%te. #s a matter o( (act t$e !amages a,ar!e! seem to be nominal 9%!ge! b' t$e !escri&tion o( t$e &lainti((Hs interests a!versel' a((ecte! b' t$e conversion o( =. =rieto )treet into a mar+et. 2$e a&&eal is absol%tel' ,it$o%t merit an! t$e a&&eale! !ecision ,ill be a((irme! ,it$ costs against t$e a&&ellant. 'an 'oco v. Municipal Council o! )loilo Facts: 2$e ,i!o, o( 2an 2oco s%e! t$e m%nici&al co%ncil o( *loilo (or t$e amo%nt o( =0/ 8GG.05 being t$e &%rc$ase &rice o( t,o stri&s o( lan! one on Calle 7. M. Basa consisting o( C8/ s.%are meters an! t$e ot$er on Calle #l!ig%er consisting o( C8 s.%are meters ,$ic$ t$e m%nici&alit' o( *loilo $a! a&&ro&riate! (or ,i!ening sai! street. 2$e Co%rt o( First *nstance o( *loilo sentence! t$e sai! m%nici&alit' to &a' t$e &lainti(( t$e amo%nt so claime! &l%s t$e interest an! t$e sai! 9%!gment ,as on a&&eal a((irme! b' t$is co%rt. On acco%nt o( lac+ o( (%n!s t$e m%nici&alit' o( *loilo ,as %nable to &a' t$e sai! 9%!gment ,$ere(ore &lainti(( $a! a ,rit o( e4ec%tion iss%e against t$e &ro&ert' o( t$e sai! m%nici&alit' b' virt%e o( ,$ic$ t$e s$eri(( attac$e! t,o a%to tr%c+s %se! (or street s&rin+ling one &olice
1/8

&atrol a%tomobile t$e &olice stations on Mabini street an! in Molo an! Man!%rriao an! t$e concrete str%ct%res ,it$ t$e corres&on!ing lots %se! as mar+ets b' *loilo Molo an! Man!%rriao. #(ter notice o( t$e sale o( sai! &ro&ert' $a! been ma!e an! a (e, !a's be(ore t$e sale t$e &rovincial (iscal o( *loilo (ile! a motion ,$ic$ t$e Co%rt o( First *nstance &ra'ing t$at t$e attac$ment on t$e sai! &ro&ert' be !issolve! t$at t$e sai! attac$ment be !eclare! n%ll an! voi! as being illegal an! violative o( t$e rig$ts o( t$e !e(en!ant m%nici&alit'. =lainti((s co%nsel ob9ecte! o t$e (iscalHs motion b%t t$e co%rt b' or!er o( #%g%st 1/ 18/C !eclare! t$e attac$ment levie! %&on t$e a(orementione! &ro&ert' o( t$e !e(en!ant m%nici&alit' n%ll an! voi! t$ereb' !issolving t$e sai! attac$ment. *ss%e: 6ON t$e &ro&ert' levie! %&on is e4em&t (rom e4ec%tion. 2$e m%nici&al la, section /1GC o( t$e #!ministrative Co!e &rovi!es t$at: M%nici&alities are &olitical bo!ies cor&orate an! as s%c$ are en!o,e! ,it$ t$e (ac%lties o( m%nici&al cor&orations to be e4ercise! b' an! t$ro%g$ t$eir res&ective m%nici&al government in con(ormit' ,it$ la,.*t s$all be com&etent (or t$em in t$eir &ro&er cor&orate name to s%e an! be s%e! to contract an! be contracte! ,it$ to ac.%ire an! $ol! real an! &ersonal &ro&ert' (or m%nici&al &%r&oses an! generall' to e4ercise t$e &o,ers $ereina(ter s&eci(ie! or ot$er,ise con(erre! %&on t$em b' la,. For t$e &%r&oses o( t$e matter $ere in .%estion t$e #!ministrative Co!e !oes not s&eci(' t$e +in! o( &ro&ert' t$at a m%nici&alit' ma' ac.%ire. Ho,ever article 101 o( t$e Civil Co!e !ivi!es t$e &ro&ert' o( &rovinces an! to,ns ;m%nici&alities< into &ro&ert' (or &%blic %se an! &atrimonial &ro&ert'. #ccor!ing to article 100 o( t$e same Co!e &rovincial roa!s an! (ootD&at$ s.%ares streets (o%ntains an! &%blic ,aters !rives an! &%blic im&rovements o( general bene(it b%ilt at t$e e4&ense o( t$e sai! to,ns or &rovinces are &ro&ert' (or &%blic %se. #ll ot$er &ro&ert' &ossesse! b' t$e sai! to,ns an! &rovinces is &atrimonial an! s$all be s%b9ect to t$e &rovisions o( t$e Civil Co!e e4ce&t as &rovi!e! b' s&ecial la,s. *t is generall' $el! t$at &ro&ert' o,ne! b' a m%nici&alit' ,$ere not %se! (or a &%blic &%r&ose b%t (or .%asi &rivate &%r&oses is s%b9ect to e4ec%tion on a 9%!gment against t$e m%nici&alit' an! ma' be sol!. 2$is r%le a&&lies to s$ares o( stoc+ o,ne! b' a m%nici&al cor&oration an! t$e li+e. B%t t$e mere (act t$at cor&orate &ro&ert' $el! (or &%blic %ses is being tem&oraril' %se! (or &rivate &%r&oses !oes not ma+e it s%b9ect e4ec%tion. *( m%nici&al &ro&ert' e4em&t (rom e4ec%tion is !estro'e! t$e ins%rance mone' stan!s in lie% t$ereo( an! is also e4em&t. 2$e members or in$abitants o( a m%nici&al cor&oration &ro&er are not &ersonall' liable (or t$e !ebts o( t$e m%nici&alit' e4ce&t t$at in t$e Ne, 3nglan! )tates t$e in!ivi!%al liabilit' o( t$e in$abitant is generall' maintaine!. 2$e s&ecial concession o( t$e rig$t o( %s%(r%ct in a &%blic mar+et cannot be attac$e! li+e an' or!inar' rig$t beca%se t$at ,o%l! be to &ermit a &erson ,$o $as contracte! ,it$ t$e state or ,it$ t$e a!ministrative o((icials t$ereo( to con!%ct an! manage a service o( a &%blic c$aracter to be s%bstit%te! ,it$o%t t$e +no,le!ge an! consent o( t$e a!ministrative a%t$orities b' one ,$o too+ no &art in t$e contract t$%s giving rise to t$e &ossibilit' o( t$e reg%lar co%rse o( a &%blic service being !ist%rbe! b' t$e more or less legal action o( a grantee to t$e &re9%!ice o( t$e state an! t$e &%blic interests. 2$e &rivilege or (ranc$ise grante! to a &rivate &erson to en9o' t$e %s%(r%ct o( a &%blic mar+et cannot la,(%ll' be attac$e! an! sol! an! a cre!itor o( s%c$ &erson can recover $is !ebt onl' o%t o( t$e income or reven%e obtaine! b' t$e !ebtor (rom t$e en9o'ment or %s%(r%ct o( t$e sai! &rivilege in t$e same manner t$at t$e rig$ts o( s%c$ cre!itors o( a railroa! com&an' can be e4ercise! an! t$eir cre!it collecte! onl' o%t o( t$e gross recei&ts remaining a(ter !e!%ction $as been ma!e t$ere(rom o( t$e o&erating e4&enses o( t$e roa!. For t$e reasons containe! in t$e a%t$orities above .%ote! ,e believe t$at t$is co%rt ,o%l! $ave reac$e! t$e same concl%sion i( t$e !ebtor $a! been m%nici&alit' o( G%inobatan an! t$e &%blic mar+et $a! been levie! %&on b' virt%e o( t$e e4ec%tion. *t is evi!ent t$at t$e movable an! immovable &ro&ert' o( a m%nici&alit' necessar' (or governmental &%r&ose ma' not be attac$e! an! sol! (or t$e &a'ment o( a 9%!gment against t$e m%nici&alit'. 2$e s%&reme reason (or t$is r%le is t$e c$aracter o( t$e &%blic %se to ,$ic$ s%c$ +in! o( &ro&ert' is !evote!. 2$e necessit' (or government service 9%sti(ies t$at
115

t$e &ro&ert' o( &%blic o( t$e m%nici&alit' be e4em&t (rom e4ec%tion 9%st as it is necessar' to e4em&t certain &ro&ert' o( &rivate in!ivi!%als in accor!ance ,it$ section 0C/ o( t$e Co!e o( Civil =roce!%re. 3ven t$e m%nici&al income accor!ing to t$e above .%ote! a%t$orities is e4em&t (rom lev' an! e4ec%tion. *n vol%me 1 &age 0G7 M%nici&al Cor&orations b' Dillon ,e (in! t$at: M%nici&al cor&orations are instit%te! b' t$e s%&reme a%t$orit' o( a state (or t$e &%blic goo!. 2$e' e4ercise b' !elegation (rom t$e legislat%re a &ortion o( t$e sovereign &o,er. 2$e main ob9ect o( t$eir creation is to act as a!ministrative agencies (or t$e state an! to &rovi!e (or t$e &olice an! local government o( certain !esignate! civil !ivisions o( its territor'. 2o t$is en! t$e' are investe! ,it$ certain governmental &o,ers an! c$arge! ,it$ civil &olitical an! m%nici&al !%ties. 2o enable t$em bene(iciall' to e4ercise t$ese &o,ers an! !isc$arge t$ese !%ties t$e' are clot$e! ,it$ t$e a%t$orit' to raise reven%es c$ie(l' b' ta4ation an! s%bor!inatel' b' ot$er mo!es as b' licenses (ines an! &enalties. 2$e reven%e o( t$e &%blic cor&oration is t$e essential means b' ,$ic$ it is enable! to &er(orm its a&&ointe! ,or+. De&rive! o( its reg%lar an! a!e.%ate s%&&l' o( reven%e s%c$ a cor&oration is &racticall' !estro'e! an! t$e en!s o( its erection t$,arte!. Base! %&on consi!erations o( t$is c$aracter it is t$e settle! !octrine o( t$e la, t$at onl' t$e &%blic &ro&ert' b%t also t$e ta4es an! &%blic reven%es o( s%c$ cor&orations cannot be seiBe! %n!er e4ec%tion against t$em eit$er in t$e treas%r' or ,$en in transit to it. 7%!gments ren!ere! (or ta4es an! t$e &rocee!s o( s%c$ 9%!gments in t$e $an!s o( o((icers o( t$e la, are not s%b9ect to e4ec%tion %nless so !eclare! b' stat%te. 2$e !octrine o( t$e inviolabilit' o( t$e &%blic reven%es b' t$e cre!itor is maintaine! alt$o%g$ t$e cor&oration is in !ebt an! $as no means o( &a'ment b%t t$e ta4es ,$ic$ it is a%t$oriBe! to collect. #not$er error assigne! b' co%nsel (or a&&ellant is t$e $ol!ing o( t$e co%rt a .%o t$at t$e &ro&er reme!' (or collecting t$e 9%!gment in (avor o( t$e &lainti(( ,as b' ,a' or man!am%s. 6$ile t$is .%estion is not necessaril' incl%!e! in t$e one ,$ic$ is t$e s%b9ect o( t$is a&&eal 'et ,e believe t$at t$e $ol!ing o( t$e co%rt assigne! as error b' a&&ellantHs co%nsel is tr%e ,$en a(ter a 9%!gment is ren!ere! against a m%nici&alit' it $as no &ro&ert' s%b9ect to e4ec%tion. 2$is !octrine is maintaine! b' Dillon ;M%nici&al Cor&orations vol. 0 &ar. 1C57 Ct$ e!.< base! %&on t$e !ecisions o( several )tates o( t$e @nion %&$ol!ing t$e same &rinci&le an! ,$ic$ are cite! on &age /G78 o( t$e a(oresai! ,or+. *n t$is sense t$is assignment o( error ,e believe is gro%n!less. Municipalit# o! Ma:ati v. CA Facts: 2$e M%nici&alit' o( Ma+ati initiatie! e4&ro&riation &rocee!ings against #!miral Finance Cre!itors Consorti%m *nc. Home B%il!ing )'stem P -ealt' Cor&oration an! one #rceli =. 7o. #ttac$e! to Ma+ati>s com&laint ,as a certi(ication t$at a ban+ acco%nt $a! been o&ene! ,it$ t$e =NB B%en!ia Branc$ %n!er &etitionerHs name containing t$e s%m o( =017 C15.55 ma!e &%rs%ant to t$e &rovisions o( =D 0/. -2C a&&raise! &ro&ert' at =C /81 GGG.55 an! or!ere! &etitioner to &a' amo%nt min%s t$e a!vance! &a'ment o( =118 1G5.55 ,$ic$ ,as earlier release! to #!miral. #!miral move! (or t$e iss%ance o( a ,rit o( e4ec%tion. -2C grante! an! iss%e! ,rit. # Notice o( Garnis$ment !ate! 7an%ar' 10 1888 ,as serve! b' s$eri(( =astrana %&on t$e manager o( t$e =NB B%en!ia Branc$. Ho,ever $e ,as in(orme! t$at a "$ol! co!e" ,as &lace! on t$e acco%nt o( &etitioner. #!miral (ile! motion &ra'ing t$at an or!er be iss%e! !irecting t$e ban+ to !eliver to s$eri(( t$e amo%nt e.%ivalent to t$e %n&ai! balance !%e %n!er t$e -2C !ecision. =etitioner (ile! a motion to li(t t$e garnis$ment on t$e gro%n! t$at t$e manner o( &a'ment o( t$e e4&ro&riation amo%nt s$o%l! be !one in installments ,$ic$ t$e res&on!ent -2C 9%!ge (aile! to state in $is !ecision. #!miral (ile! its o&&osition to t$e motion. =en!ing resol%tion o( t$e above motions &etitioner (ile! on 7%l' /5 1888 a "Mani(estation" in(orming t$e co%rt t$at &rivate res&on!ent ,as no longer t$e tr%e an! la,(%l o,ner o( t$e s%b9ect &ro&ert' beca%se a ne, title over t$e &ro&ert' $a! been registere! in t$e name o( =$ili&&ine )avings Ban+ *nc. ;=)B< -2C iss%e! an or!er re.%iring =)B to ma+e available t$e !oc%ments &ertaining to its transactions over t$e s%b9ect &ro&ert' an! t$e =NB B%en!ia Branc$ to reveal t$e amo%nt in &etitionerHs acco%nt ,$ic$ ,as garnis$e! b' res&on!ent s$eri((. *n com&liance ,it$ t$is or!er =)B (ile! a mani(estation in(orming t$e co%rt t$at it $a! consoli!ate! its o,ners$i& over t$e &ro&ert' as mortgagee?&%rc$aser at an e4tra9%!icial (oreclos%re sale $el! on #&ril /5 1887. #(ter several
111

con(erences =)B an! &rivate res&on!ent entere! into a com&romise agreement ,$ereb' t$e' agree! to !ivi!e bet,een t$emselves t$e com&ensation !%e (rom t$e e4&ro&riation &rocee!ings. -2C a&&rove! t$e com&romise agreement an! or!ere! =NB B%en!ia to release to =)B t$e s%m o( =0 8C1 C5G.0C ,$ic$ corres&on!s to t$e balance o( t$e a&&raise! val%e o( t$e s%b9ect &ro&ert'. =etitionerHs motion to li(t t$e garnis$ment ,as !enie!. =etitioner (ile! M- ,$ic$ ,as !%l' o&&ose! b' &rivate res&on!ent. On t$e ot$er $an! (or (ail%re o( t$e manager o( =NB B%en!ia to com&l' ,it$ t$e or!er !ate! )e&tember 8 1888 #!miral (ile! t,o s%ccee!ing motions to re.%ire t$e ban+ manager to s$o, ca%se ,$' $e s$o%l! not be $el! in contem&t o( co%rt. D%ring t$e $earings con!%cte! (or t$e above motions t$e general manager o( t$e =NB B%en!ia Branc$ a Mr. #ntonio Ba%tista in(orme! t$e co%rt t$at $e ,as still ,aiting (or &ro&er a%t$oriBation (rom t$e =NB $ea! o((ice enabling $im to ma+e a !isb%rsement (or t$e amo%nt so or!ere!. For its &art &etitioner conten!e! t$at its (%n!s at t$e =NB B%en!ia Branc$ co%l! neit$er be garnis$e! nor levie! %&on e4ec%tion (or to !o so ,o%l! res%lt in t$e !isb%rsement o( &%blic (%n!s ,it$o%t t$e &ro&er a&&ro&riation re.%ire! %n!er t$e la, citing t$e case o( -e&%blic o( t$e =$ili&&ines v. =alacio. -es&on!ent trial 9%!ge iss%e! an or!er !ate! December /1 1888 !en'ing &etitionerHs motion (or reconsi!eration on t$e gro%n! t$at t$e !octrine en%nciate! in -e&%blic v. =alacio !i! not a&&l' to t$e case beca%se &etitionerHs =NB #cco%nt No. )?# /GCDC171C0D1 ,as an acco%nt s&eci(icall' o&ene! (or t$e e4&ro&riation &rocee!ings o( t$e s%b9ect &ro&ert' &%rs%ant to =res. Decree No. 0/. -es&on!ent -2C 9%!ge li+e,ise !eclare! Mr. #ntonio Ba%tista g%ilt' o( contem&t o( co%rt (or $is ine4c%sable re(%sal to obe' t$e or!er !ate! )e&tember 8 1888 an! t$%s or!ere! $is arrest an! !etention %ntil $is com&liance ,it$ t$e sai! or!er. =etitioner an! t$e ban+ manager o( =NB B%en!ia Branc$ t$en (ile! se&arate &etitions (or certiorari ,it$ t$e Co%rt o( #&&eals ,$ic$ ,ere event%all' consoli!ate!. *n a !ecision &rom%lgate! on 7%ne /8 1888 t$e Co%rt o( #&&eals !ismisse! bot$ &etitions (or lac+ o( merit s%staine! t$e 9%ris!iction o( res&on!ent -2C 9%!ge over t$e (%n!s containe! in &etitionerHs =NB #cco%nt No. /GCD C171C0D1 an! a((irme! $is a%t$orit' to lev' on s%c$ (%n!s. *ts motion (or reconsi!eration $aving been !enie! b' t$e Co%rt o( #&&eals &etitioner no, (iles t$e &resent &etition (or revie, ,it$ &ra'er (or &reliminar' in9%nction. On November /5 1888 t$e Co%rt resolve! to iss%e a tem&orar' restraining or!er en9oining res&on!ent -2C 9%!ge res&on!ent s$eri(( an! t$eir !ate! December /1 1888 an! t$e ,rit o( garnis$ment iss%e! &%rs%ant t$ereto. =rivate res&on!ent t$en (ile! its comment to t$e &etition ,$ile &etitioner (ile! its re&l'. =etitioner not onl' reiterates t$e arg%ments a!!%ce! in its &etition be(ore t$e Co%rt o( #&&eals b%t also alleges (or t$e (irst time t$at it $as act%all' t,o acco%nts ,it$ t$e =NB B%en!ia Branc$ to ,it: ;1< #cco%nt No. )?# /GCD C171C0D1 S e4cl%sivel' (or t$e e4&ro&riation o( t$e s%b9ect &ro&ert' ,it$ an o%tstan!ing balance o( =88 701.80.;/< #cco%nt No. )?# /G1DC158C5D7 S (or stat%tor' obligations an! ot$er &%r&oses o( t$e m%nici&al government ,it$ a balance o( =175 588 0/1.7/ as o( 7%l' 1/ 1888. Beca%se t$e &etitioner $as belate!l' allege! onl' in t$is Co%rt t$e e4istence o( t,o ban+ acco%nts it ma' (airl' be as+e! ,$et$er t$e secon! acco%nt ,as o&ene! onl' (or t$e &%r&ose o( %n!ermining t$e legal basis o( t$e assaile! or!ers o( res&on!ent -2C 9%!ge an! t$e !ecision o( t$e Co%rt o( #&&eals an! strengt$ening its reliance on t$e !octrine t$at &%blic (%n!s are e4em&te! (rom garnis$ment or e4ec%tion as en%nciate! in -e&%blic v. =alacio. #t an' rate t$e Co%rt ,ill give &etitioner t$e bene(it o( t$e !o%bt an! &rocee! to resolve t$e &rinci&al iss%es &resente! base! on t$e (act%al circ%mstances t$%s allege! b' &etitioner. #!mitting t$at its =NB #cco%nt No. )?# /GCD C171C0D1 ,as s&eci(icall' o&ene! (or e4&ro&riation &rocee!ings it $a! initiate! over t$e s%b9ect &ro&ert' &etitioner &oses no ob9ection to t$e garnis$ment or t$e lev' %n!er e4ec%tion o( t$e (%n!s !e&osite! t$erein amo%nting to =88 701.80. Ho,ever it is &etitionerHs main contention t$at inasm%c$ as t$e assaile! or!ers o( res&on!ent -2C 9%!ge involve! t$e net amo%nt o( =0 8GC C5G.0C t$e (%n!s garnis$e! b' res&on!ent s$eri(( in e4cess o( =88 701.80 ,$ic$ are &%blic (%n!s earmar+e! (or t$e m%nici&al governmentHs ot$er stat%tor' obligations are e4em&te! (rom e4ec%tion ,it$o%t t$e &ro&er a&&ro&riation re.%ire! %n!er t$e la,. 2$ere is merit in t$is contention. 2$e (%n!s !e&osite! in t$e secon! =NB #cco%nt No. )?# /G1DC158C5D7 are &%blic (%n!s o( t$e m%nici&al government. *ss%e: 6ON t$e (%n!s !e&osite! ma' be levie!. *n t$is 9%ris!iction ,ellDsettle! is t$e r%le t$at &%blic (%n!s are not s%b9ect to lev' an! e4ec%tion %nless ot$er,ise &rovi!e! (or b' stat%te. More &artic%larl' t$e &ro&erties o( a m%nici&alit' ,$et$er real or &ersonal ,$ic$ are necessar' (or &%blic %se cannot be attac$e! an! sol! at e4ec%tion sale to satis(' a mone' 9%!gment against t$e m%nici&alit'.
11/

M%nici&al reven%es !erive! (rom ta4es licenses an! mar+et (ees an! ,$ic$ are inten!e! &rimaril' an! e4cl%sivel' (or t$e &%r&ose o( (inancing t$e governmental activities an! (%nctions o( t$e m%nici&alit' are e4em&t (rom e4ec%tion. 2$e (oregoing r%le (in!s a&&lication in t$e case at bar. #bsent a s$o,ing t$at t$e m%nici&al co%ncil o( Ma+ati $as &asse! an or!inance a&&ro&riating (rom its &%blic (%n!s an amo%nt corres&on!ing to t$e balance !%e %n!er t$e -2C !ecision !ate! 7%ne 0 1887 less t$e s%m o( =88 701.80 !e&osite! in #cco%nt No. )?# /GCDC171C0D1 no lev' %n!er e4ec%tion ma' be vali!l' e((ecte! on t$e &%blic (%n!s o( &etitioner !e&osite! in #cco%nt No. )?# /G1DC158C5D7. Nevert$eless t$is is not to sa' t$at &rivate res&on!ent an! =)B are le(t ,it$ no legal reco%rse. 6$ere a m%nici&alit' (ails or re(%ses ,it$o%t 9%sti(iable reason to e((ect &a'ment o( a (inal mone' 9%!gment ren!ere! against it t$e claimant ma' avail o( t$e reme!' o( man!am%s in or!er to com&el t$e enactment an! a&&roval o( t$e necessar' a&&ro&riation or!inance an! t$e corres&on!ing !isb%rsement o( m%nici&al (%n!s t$ere(or *n t$e case at bar t$e vali!it' o( t$e -2C !ecision !ate! 7%ne 0 1887 is not !is&%te! b' &etitioner. No a&&eal ,as ta+en t$ere(rom. For t$ree 'ears no, &etitioner $as en9o'e! &ossession an! %se o( t$e s%b9ect &ro&ert' not,it$stan!ing its ine4c%sable (ail%re to com&l' ,it$ its legal obligation to &a' 9%st com&ensation. =etitioner $as bene(ite! (rom its &ossession o( t$e &ro&ert' since t$e same $as been t$e site o( Ma+ati 6est Hig$ )c$ool since t$e sc$ool 'ear 188GD1887. 2$is Co%rt ,ill not con!one &etitionerHs blatant re(%sal to settle its legal obligation arising (rom e4&ro&riation &rocee!ings it $a! in (act initiate!. *t cannot be overDem&$asiBe! t$at ,it$in t$e conte4t o( t$e )tateHs in$erent &o,er o( eminent !omain 9%st com&ensation means not onl' t$e correct !etermination o( t$e amo%nt to be &ai! to t$e o,ner o( t$e lan! b%t also t$e &a'ment o( t$e lan! ,it$in a reasonable time (rom its ta+ing. 6it$o%t &rom&t &a'ment com&ensation cannot be consi!ere! "9%st" (or t$e &ro&ert' o,ner is ma!e to s%((er t$e conse.%ence o( being imme!iatel' !e&rive! o( $is lan! ,$ile being ma!e to ,ait (or a !eca!e or more be(ore act%all' receiving t$e amo%nt necessar' to co&e ,it$ $is loss.
2$e )tateHs &o,er o( eminent !omain s$o%l! be e4ercise!

,it$in t$e bo%n!s o( (air &la' an! 9%stice. *n t$e case at bar consi!ering t$at val%able &ro&ert' $as been ta+en t$e com&ensation to be &ai! (i4e! an! t$e m%nici&alit' is in (%ll &ossession an! %tiliBing t$e &ro&ert' (or &%blic &%r&ose (or t$ree ;1< 'ears t$e Co%rt (in!s t$at t$e m%nici&alit' $as $a! more t$an reasonable time to &a' (%ll com&ensation. Co%rt -esolve! to O-D3- &etitioner M%nici&alit' o( Ma+ati to imme!iatel' &a' =$ili&&ine )avings Ban+ *nc. an! &rivate res&on!ent t$e amo%nt o( =0 8C1 C5G.0C. =etitioner is $ereb' re.%ire! to s%bmit to t$is Co%rt a re&ort o( its com&liance ,it$ t$e (oregoing or!er ,it$in a nonDe4ten!ible &erio! o( )*J2: ;G5< D#:) (rom t$e !ate o( recei&t o( t$is resol%tion. Pasa# Cit# Government v. C&) o! Manila Facts: K.D. *si& )ons P #ssociates re&resente! b' Kicente Davi! *si& entere! into a contract ,it$ t$e Cit' o( =asa' re&resente! b' t$e t$en Ma'or =ablo C%neta. =%rs%ant to t$e a(oresai! contract t$e res&on!entDa&&ellee &rocee!e! ,it$ t$e constr%ction o( t$e ne, =asa' Cit' Hall b%il!ing as &er !%l' a&&rove! &lans an! s&eci(ications. 2$e res&on!entDa&&ellee accom&lis$e! %n!er vario%s stages o( constr%ction t$e amo%nt o( ,or+ ;incl%!ing s%&&lies an! materials< e.%ivalent to an estimate! val%e o( =1 711 58G.55 o( t$e total contract &rice o( =0 810 C55.85. 2$e a&&ellants &ai! onl' t$e total amo%nt o( =1 155 555.55 to t$e res&on!entDa&&ellee leaving an amo%nt o( =G11 58G.55 imme!iatel' !%e (rom t$e &etitionerDa&&ellants to t$e res&on!entD a&&ellee. =asa' (aile! to &a'. #ction (or s&eci(ic &er(ormance ,it$ !amages against $erein &etitionersDa&&ellants be(ore t$e res&on!ent Co%rt. 2$e &arties arrive! at a !ra(t o( amicable agreement ,$ic$ ,as s%bmitte! to t$e M%nici&al Boar! o( =asa' Cit' (or its consi!eration. =rotracte! &reDtrial $earings an! con(erences ,ere $el! ,$ere t$e res&on!ent Co%rt s%ggeste! an! a!vise! t$at "%n!er t$e &rinci&le o( .%ant%m mer%it t$e &lainti(( is (ort$,it$ entitle! to at least t$at ,$ic$ is !%e to $im (or !e(en!ants %n!er t$e contract an! t$at &%blic interest m%st &er(orce re.%ire t$e contin%it' o( constr%ction o( a &%blic ,or+ &ro9ect instea! o( !ela'ing its imme!iate com&letion b' litigating %&on tec$nical gro%n!s ,$ic$ ,o%l! %n!o%bte!l' re!o%n! to &%blic !etriment". 2$e M%nici&al Boar! o( =asa' t$en enacte! Or!inance No. 151/
111

,$ic$ a&&rove! t$e Com&romise #greement an! also a%t$oriBe! an! em&o,ere! t$e inc%mbent Cit' Ma'or Cla%!io to re&resent t$e a&&ellant =asa' Cit' Government s%b9ect to t$e (inal a&&roval o( t$e res&on!ent Co%rt $erein. Co%rt a&&rove! t$e sai! Com&romise #greement incl%!ing a Mani(estation an! #!!en!%m t$ereto. On #&ril 15 18G8 t$e a&&ellants (ile! an %rgent motion see+ing a !eclaration o( legalit' o( t$e original contract an! agreement !ate! #%g%st 0 18G0 (rom t$e res&on!ent Co%rt. Co%rt iss%e! an or!er !eclaring t$at t$e original contract is legal an! vali!. Co%rt grante! an or!er o( e4ec%tion &%rs%ant to ,$ic$ a ,rit o( e4ec%tion ,as iss%e!. #&&lication (or an! notice o( garnis$ment ,ere ma!e an! e((ecte! %&on t$e (%n!s o( a&&ellant =asa' Cit' Government ,it$ t$e =NB. =asa': &remat%re t$e 85D!a' sti&%lation $as not e4&ire!A t$e obligations ,ere reci&rocal t$e contractor $as not set %& a ne, &er(ormance bon!A an! )$eri(( cannot garnis$ tr%st (%n!s o( t$e cit'. 2C: Contractor com&lie! s%bstantiall' garnis$ment m%st &rocee!. *ss%e: 6ON t$e CF* erre! in re(%sing to .%as$ t$e ,rit o( e4ec%tion it iss%e!. :3). 2$e t,o &%r&oses o( a com&romise agreement are en%nciate! in #rticle /5/8 o( t$e Ne, Civil Co!e to ,it: "#. /5/8. # com&romise is a contract ,$ereb' t$e &arties b' ma+ing reci&rocal concessions avoi! a litigation or &%t an en! to one alrea!' commence!." 2$e (irst &%r&ose D "to avoi! a litigation" D occ%rs ,$en t$ere is a t$reat o( an im&en!ing litigation. #t t$is &oint no case $as 'et reac$e! t$e co%rts. 2$e moment a case $as been (ile! in co%rt t$en t$e secon! &%r&ose D "to &%t an en! to one alrea!' commence!" D a&&lies. *n t$e $erein case 6e are concerne! ,it$ t$e secon! &%r&ose. 2$e latter &%r&ose is given e((ect in #rticle /517 o( t$e Ne, Civil Co!e ,$ic$ rea!s: "#rticle /517. # com&romise $as %&on t$e &arties t$e e((ect an! a%t$orit' o( res 9%!icataA b%t t$ere s$all be no e4ec%tion e4ce&t in com&liance ,it$ a 9%!icial com&romise." # com&romise agreement not contrar' to la, &%blic or!er &%blic &olic' morals or goo! c%stoms is a vali! contract ,$ic$ is t$e la, bet,een t$e &arties t$emselves. # 9%!gment on a com&romise is a (inal an! e4ec%tor. *t is imme!iatel' e4ec%tor in t$e absence o( a motion to set t$e same asi!e on t$e gro%n! o( (ra%! mista+e or !%ress.
*n (act in t$e $erein case be(ore @s e4ec%tion $as alrea!'

been iss%e!. Consi!ering t$is in t$e lig$t o( #rticle /501 o( t$e Ne, Civil Co!e to ,it: "#rt. /501. *( one o( t$e &arties (ails or re(%ses to abi!e b' t$e com&romise t$e ot$er &art' ma' eit$er en(orce t$e com&romise or regar! it as rescin!e! an! insist %&on $is original !eman!." it is obvio%s t$at t$e res&on!entDa&&ellee !i! not onl' s%ccee! in en(orcing t$e com&romise b%t sai! &lainti((D a&&ellee li+e,ise ,ants to rescin! t$e sai! com&romise. *t is clear (rom t$e lang%age o( t$e la, s&eci(icall' #rticle /501 o( t$e Ne, Civil Co!e t$at one o( t$e &arties to a com&romise $as t,o o&tions: 1< to en(orce t$e com&romiseA or /< to rescin! t$e same an! insist %&on $is original !eman!. 2$e res&on!entDa&&ellee in t$e case $erein be(ore @s ,ants to avail o( bot$ o( t$ese o&tions. 2$is can not be !one. 2$e res&on!entDa&&ellee cannot as+ (or rescission o( t$e com&romise agreement a(ter it $as alrea!' en9o'e! t$e (irst o&tion o( en(orcing t$e com&romise b' as+ing (or a ,rit o( e4ec%tion res%lting t$ereb' in t$e garnis$ment o( t$e =asa' Cit' (%n!s !e&osite! ,it$ t$e =$ili&&ine National Ban+ ,$ic$ event%all' ,as !elivere! to t$e res&on!entDa&&ellee. @&on t$e iss%ance o( t$e ,rit o( e4ec%tion t$e &etitionerD a&&ellants move! (or its .%as$al alleging among ot$er t$ings t$e e4em&tion o( t$e government (rom e4ec%tion. 2$is move on t$e &art o( t$e &etitionerDa&&ellant is at (irst glance la%!able (or "all government (%n!s !e&osite! ,it$ t$e =$ili&&ine National Ban+ b' an' agenc' or instr%mentalit' o( t$e government ,$et$er b' ,a' o( general or s&ecial !e&osit remain government (%n!s an! ma' not be s%b9ect to garnis$ment or lev' ;Commissioner o( =%blic Hig$,a's vs. )an Diego LD15588 11 )C-# G1G UFeb. 18 1875V<. B%t inasm%c$ as an or!inance $as alrea!' been enacte! e4&ressl' a&&ro&riating t$e amo%nt o( =G11 58G.55 o( &a'ment to t$e res&on!entDa&&ellee t$en t$e $erein case is covere! b' t$e e4ce&tion to t$e general r%le state! in t$e case o( -e&%blic vs. =alacio: "7%!gments against a )tate in cases ,$ere it $as consente! to be s%e! generall' o&erate merel' to li.%i!ate an! establis$ &lainti((Hs claim in t$e absence o( e4&ress &rovisionA ot$er,ise t$e' cannot be en(orce! b' &rocesses o( t$e la,A an! it is (or t$e legislat%re to &rovi!e (or t$e &a'ment in s%c$ manner as sees (it."
110
Mabelle O. Nebres | Local Governments Case Digests Having establis$e! t$at t$e com&romise agreement ,as
(inal an! imme!iatel' e4ec%tor' an! in (act as alrea!' en(orce! t$e res&on!ent co%rt ,as in error ,$ere it still entertaine! t$e s%&&lemental com&laint (ile! b' t$e res&on!entDa&&ellee (or b' t$en t$e res&on!ent Co%rt $a! no more 9%ris!iction over t$e s%b9ect matter. 6$en a !ecision $as become (inal an! e4ec%tor' t$e co%rt no longer $as t$e &o,er an! 9%ris!iction to alter amen! or revo+e an! its onl' &o,er t$ereo( is to or!er its e4ec%tion. #(ter t$e &er(ection o( an a&&eal t$e trial co%rt loses 9%ris!iction over its 9%!gment an! cannot vacate t$e same. 63 (in! no error in t$e or!er o( t$e res&on!ent Co%rt !ate! 7%l' /1 18G8. From t$e rea!ing o( t$e &remises an! &rovisions o( t$e contract an! agreement ,$ic$ ,as "(ormall' con(irme! an! o((iciall' a&&rove! b' t$e &arties" in t$e com&romise agreement later entere! into b' t$e same &arties s%b9ect onl' to t$e en%merate! c$anges an!?or mo!i(ications it is obvio%s t$at t$e contracting &arties envisione! a stage b' stage constr%ction ;on t$e &art o( t$e res&on!entDa&&ellee< an! &a'ment ;on t$e &art o( t$e !e(en!antDa&&ellant<. )%bD&aragra&$ B o( &aragra&$ 1 o( t$e Com&romise #greement to ,it: "B. 2$at imme!iatel' %&on (inal a&&roval $ereo( b' t$is Honorable Co%rt t$e &lainti(( contractor ,ill s%bmit an! (ile in (avor o( =asa' Cit' Government a ne, &er(ormance bon! in t$e amo%nt re.%ire! b' &ertinent la, r%les an! reg%lations in &ro&ortion to t$e remaining val%e or cost o( t$e %n(inis$e! ,or+ o( t$e constr%ction as &er a&&rove! &lans an! s&eci(ications . . ." -ea! toget$er ,it$ t$e stageDb'Dstage constr%ction an! &a'ment a&&roac$ ,o%l! inevitabl' lea! to t$e concl%sion t$at t$e &arties to t$e com&romise contem&late! a !ivisible obligation necessitating t$ere(ore a &er(ormance bon! "in &ro&ortion to" t$e %ncom&lete! ,or+. 6$at is cr%cial in s%bD&aragra&$ B o( &aragra&$ 1 o( t$e com&romise agreement are t$e ,or!s "in &ro&ortion." *( t$e &arties reall' inten!e! t$e legal rate o( /5Y &er(ormance bon! to re(er to t$e ,$ole %n(inis$e! ,or+ t$en t$e &rovision s$o%l! $ave re.%ire! t$e &lainti(( contractor to s%bmit an! (ile a ne, &er(ormance bon! to cover t$e remaining val%e?cost o( t$e %n(inis$e! ,or+ o( t$e constr%ction. @sing t$e ,or!s in &ro&ortion t$en signi(icantl' c$ange! t$e meaning o( t$e &aragra&$ to %ltimatel' mean a &er(ormance bon! e.%al to /5Y o( t$e ne4t stage o( ,or+ to be !one. #n! 6e note t$at in t$e Contract an! #greement t$e res&on!entDa&&ellee ,as allo,e! to (ile a &er(ormance bon! o( =/// /C5.55 ,$ic$ is b%t CY o( t$e total bi! o( =0 810 C55.85. # sec%rit' bon! ,as li+e,ise (ile! ,it$ an amo%nt o( =87 /85.55. 2$e s%m total o( bon! t$en (ile! ,as =1/5 C05.55 ,$ic$ is 9%st G.CY o( t$e total bi!. *t is rat$er c%rio%s ,$' all o( a s%!!en t$e &etitionersDa&&ellants are insisting on a /5Y &er(ormance bon! o( t$e entire %n(inis$e! ,or+ ,$en t$e' ,ere .%ite content ,it$ a bon! 9%st CY o( t$e entire ,or+. For @s to allo, t$e &etitionersD a&&ellants to a!amantl' stic+ to t$e /5Y &er(ormance bon! ,o%l! be tantamo%nt to allo,ing t$em to eva!e t$eir obligation in t$e com&romise agreement. 2$is cannot be allo,e!. 2$e bon! o( a contractor (or a &%blic ,or+ s$o%l! not be e4ten!e! be'on! t$e reasonable intent as gat$ere! (rom t$e &%r&ose an! lang%age o( t$e instr%ment constr%e! in connection ,it$ t$e &ro&osals &lans an! s&eci(ications an! contract. 2$e &remi%m o( t$e bon! ,ill be siBeable an! ,ill eat %& t$e &ro(it o( t$e contractor ,$o is (ace! ,it$ t$e (l%ct%ation o( &rices o( materials !%e to in(lation an! !eval%ation. -ig$t no, man' contractors cannot &rocee! ,it$ t$e im&lementation o( t$eir contracts beca%se o( t$e e4traor!inar' rise in cost o( materials an! labor. No contractor ,o%l! be ,illing to bi! (or &%blic ,or+s contracts %n!er t$e o&&ressive inter&retation b' &etitionersD a&&ellants. #gain t$e res&on!ent Co%rt ,as correct in r%ling t$at t$e s%bmission o( t$e bon! ,as not a con!ition &rece!ent to t$e &a'ment o( =G11 58G.55 to t$e &lainti((. No,$ere in t$e Contact an! #greement nor in t$e Com&romise #greement co%l! be (o%n! t$e (act t$at &a'ment b' t$e &etitionerD a&&ellants o( t$e amo%nt o( =G11 58G.55 ,as !e&en!ent %&on t$e s%bmission b' t$e res&on!entDa&&ellee o( t$e &er(ormance bon!. *t cannot be arg%e! t$at reci&rocal obligation ,as create! in t$e Com&romise #greement (or t$e obligation to &a' on t$e &art o( t$e &etitionersD a&&ellants ,as establis$e! several 'ears ago ,$en t$e
11C

res&on!entsDa&&ellee (inis$e! some o( t$e stages o( constr%ction. #n! t$is arg%ment is alrea!' moot an! aca!emic (or t$e amo%nt o( =G11 58G.55 $as alrea!' been collecte! t$ro%g$ e4ec%tion an! garnis$ment %&on t$e (%n!s o( =asa' Cit' ,it$ t$e =$ili&&ine National Ban+. *nasm%c$ as t$e &arties in t$e $erein case $ave agree! in t$e Com&romise #greement to ,it: "1. 2$at ,it$in a similar &erio! t$e !e(en!ant =asa' Cit' Government s$all &a' an! remit to &lainti(( contractor an amo%nt e.%ivalent to t$ree ;1Y< &ercent o( t$e above mentione! amo%nt o( )*J H@ND-3D 2H*-233N N*N32:D)*J =3)O) ;=G11 58G.55< (or an! as a!verse attorne'Hs (ees in t$is caseA . . . " Municipalit# o! Paoa#- )locos ,orte v. Manaois Facts: 2eo!oro Manaois $aving obtaine! a 9%!gment against t$e m%nici&alit' o( =aoa' *locos Norte in civil case No. 85/G o( t$e Co%rt o( First *nstance o( =angasinan 7%!ge De G%Bman o( sai! &rovince iss%e! a ,rit o( e4ec%tion against t$e !e(en!ant m%nici&alit'. *n com&liance ,it$ sai! ,rit t$e =rovincial )$eri(( o( *locos Norte levie! %&on an! attac$e! certain &ro&erties. On 7%l' /G 1808 t$e =rovincial Fiscal o( *locos Norte in re&resentation o( t$e m%nici&alit' o( =aoa' (ile! a &etition in t$e Co%rt o( First *nstance o( =angasinan as+ing (or t$e !issol%tion o( t$at attac$ment o( lev'. 7%!ge De G%Bman in $is or!er o( October G 1808 !enie! t$e &etition (or t$e !issol%tion o( t$e attac$mentA a M- also !enie!. *nstea! o( a&&ealing (rom t$at or!er t$e m%nici&alit' o( =aoa' $as (ile! t$e &resent &etition (or certiorari ,it$ t$e ,rit o( &reliminar' in9%nction as+ing t$at t$e or!er o( res&on!ent 7%!ge !ate! October G 180G be reverse! an! t$at t$e attac$ment o( t$e &ro&erties o( t$e m%nici&alit' be !issolve!. *ss%e: 6ON &ro&erties ma' be levie!. 2$ere can be no .%estion t$at &ro&erties (or &%blic %se $el! b' m%nici&al cor&oration are not s%b9ect to lev' an! e4ec%tion. 2$e a%t$orities are %nanimo%s on t$is &oint. 2$is Co%rt in t$e case o( Ki%!a !e 2antoco vs. M%nici&al Co%ncil o( *loilo ;08 =$il. C/< a(ter citing Manresa t$e ,or+s o( McW%illin an! Dillon on M%nici&al Cor&orations an! Cor&%s 7%ris $el! t$at &ro&erties (or &%blic %se li+e tr%c+s %se! (or s&rin+ling t$e streets &olice &atrol ,agons &olice stations &%blic mar+ets toget$er ,it$ t$e lan! on ,$ic$ t$e' stan! are e4em&t (rom e4ec%tion. 3ven &%blic reven%es o( m%nici&al cor&orations !estine! (or t$e e4&enses o( t$e m%nici&alit' are also e4em&t (rom t$e e4ec%tion. 2$e reason be$in! t$is e4em&tion e4ten!e! to &ro&erties (or &%blic %se an! &%blic m%nici&al reven%es is t$at t$e' are $el! in tr%st (or t$e &eo&le inten!e! an! %se! (or t$e accom&lis$ment o( t$e &%r&oses (or ,$ic$ m%nici&al cor&orations are create! an! t$at to s%b9ect sai! &ro&erties an! &%blic (%n!s to e4ec%tion ,o%l! materiall' im&e!e even !e(eat an! in some instances !estro' sai! &%r&ose. =ro&ert' $o,ever ,$ic$ is &atrimonial an! ,$ic$ is $el! b' m%nici&alit' in its &ro&rietar' ca&acit' is treate! b' great ,eig$t o( a%t$orit' as t$e &rivate asset o( t$e to,n an! ma' be levie! %&on an! sol! %n!er an or!inar' e4ec%tion. 2$e same r%le a&&lies to m%nici&al (%n!s !erive! (rom &atrimonial &ro&erties (or instance it $as been $el! t$at s$ares o( stoc+s $el! b' m%nici&al cor&orations are s%b9ect to e4ec%tion. *( t$is is tr%e ,it$ more reason s$o%l! income or reven%e coming (rom t$ese s$ares o( stoc+ in t$e (orm o( interest or !ivi!en!s be s%b9ect to e4ec%tionT 2$e (is$er' or m%nici&al ,aters o( t$e to,n o( =aoa' *locos Norte ,$ic$ $a! been &arcele! o%t or !ivi!e! into lots an! later let o%t to &rivate &ersons (or (is$ing &%r&oses at an ann%al rental are clearl' not s%b9ect to e4ec%tion. *n t$e (irst &lace t$e' !o not belong to t$e m%nici&alit'. 2$e' ma' ,ell be regar!e! as &ro&ert' o( )tate. 6$at t$e m%nici&alit' o( =aoa' $ol! is merel' ,$at ma' be consi!ere! t$e %s%(r%ct or t$e rig$t to %se sai! m%nici&al ,aters grante! to it b' section /1/1 o( t$e -evise! #!ministrative Co!e. Grant o( (is$er'. S # m%nici&al co%ncil s$all $ave a%t$orit' (or &%r&oses o( &ro(it to grant t$e e4cl%sive &rivileges o( (is$er' or rig$t to con!%ct a (is$Dbree!ing gro%n! ,it$in an' !e(inite &ortion or area o( t$e m%nici&al ,aters. "M%nici&al ,aters" as $erein %se! incl%!e not onl' streams la+es an! ti!al ,aters incl%!e ,it$in t$e m%nici&alit' not being t$e s%b9ect o( &rivate o,ners$i& b%t also marine ,aters incl%!e bet,een t,o lines !ra,n &er&en!ic%lar to t$e general coast line (rom &oints ,$ere t$e bo%n!ar' lines o( t$e m%nici&alit' to%c$ t$e sea at $ig$ ti!e an! t$ir! line &arallel ,it$ t$e general coast line an! !istant (rom it t$ree marine leag%es. 6$ere t,o m%nici&alities are so sit%ate! on o&&osite s$ores t$at t$ere is less t$an si4 marine leag%es o(
11G

marine ,aters bet,een t$em t$e t$ir! line s$all be a line e.%all' !istant (rom t$e o&&osite s$ores o( t$e res&ective m%nici&alities. No, is t$is &artic%lar %s%(r%ct o( t$e m%nici&alit' o( =aoa' over its m%nici&al ,aters s%b9ect to e4ec%tion to en(orce a 9%!gment against t$e to,nT 6e are not &re&are! to ans,er t$is .%estion in t$e a((irmative beca%se t$ere are &o,er(%l reasons against its &ro&riet' an! legalit'. *n t$e (irst &lace it is not a %s%(r%ct base! on or !erive! (rom an in$erent rig$t o( t$e to,n. *t is base! merel' on a grant more or less tem&orar' ma!e b' t$e Legislat%re. 2a+e t$e rig$t o( (is$er' over t$e sea or marine ,aters bor!ering a certain m%nici&alit'. 2$ese marine ,aters are or!inaril' (or &%blic %se o&en to navigation an! (is$ing b' t$e &eo&le. 2$e Legislat%re t$r% section /1/1 o( t$e #!ministrative Co!e as alrea!' state! sa, (it to grant t$e %s%(r%ct o( sai! marine ,aters (or (is$er' &%r&ose to t$e to,ns bor!ering sai! ,aters. )ai! to,ns $ave no visite! rig$t over sai! marine ,aters. 2$e Legislat%re (or reasons it ma' !eem vali! or as a matter o( &%blic &olic' ma' at an' time re&eal or mo!i(' sai! section /1/1 an! revo+e t$is grant to coastal to,ns an! o&en t$ese marine ,aters to t$e &%blic. Or t$e Legislat%re ma' grant t$e %s%(r%ct or rig$t o( (is$er' to t$e &rovinces concerne! so t$at sai! &rovinces ma' o&erate or a!minister t$em b' leasing t$em to &rivate &arties. #ll t$is onl' goes to &rove t$at t$e m%nici&alit' o( =aoa' is not $ol!ing t$is %s%(r%ct or rig$t o( (is$er' in a &ermanent or absol%te manner so as to enable it to !is&ose o( it or to allo, it to be ta+en a,a' (rom it as its &ro&ert' t$ro%g$ e4ec%tion. #not$er reason against s%b9ecting t$is %s%(r%ct or rig$t o( (is$er' over m%nici&al ,aters to e4ec%tion is t$at i( t$is ,ere to be allo,e! an! t$is rig$t sol! on e4ec%tion t$e b%'er ,o%l! imme!iatel' ste& into t$e s$oes o( t$e 9%!gmentD!ebtor m%nici&alit'. )%c$ b%'er &res%mabl' b%'s onl' t$e rig$t o( t$e m%nici&alit'. He !oes not b%' t$e (is$er' itsel( nor t$e m%nici&al ,aters beca%se t$at belongs to t$e )tate. #ll t$at t$e b%'er mig$t !o ,o%l! be to let o%t or rent to &rivate in!ivi!%als t$e (is$er' rig$ts over t$e lots into ,$ic$ t$e m%nici&al ,aters $a! been &arcele! o%t or !ivi!e! an! t$at is a(ter &%blic bi!!ing. 2$is $e m%st !o beca%se t$at is t$e onl' rig$t grante! to t$e m%nici&alit' b' t$e Legislat%re a rig$t to be e4ercise! in t$e manner &rovi!e! b' la, namel' to rent sai! (is$er' lots a(ter &%blic bi!!ing. ;)ee sec. /1/1 o( t$e #!ministrative Co!e in connection ,it$ sec. /118 o( t$e same Co!e.< 2$en ,e s$all $ave a sit%ation rat$er anomalo%s to be s%re o( a &rivate in!ivi!%al con!%cting &%blic bi!!ing renting to t$e $ig$est bi!!ers (is$er' lots over m%nici&al ,aters ,$ic$ are &ro&ert' o( t$e )tate an! a&&ro&riating t$e res%lts to $is o,n &rivate %se. 2$e im&ro&riet' i( not illegalit' o( s%c$ a contingenc' is rea!il' a&&arent. B%t t$at is not all. 2$e sit%ation imagine! im&lies t$e !e&rivation o( t$e m%nici&al cor&oration o( a so%rce o( a s%bstantial income e4&ressl' &rovi!e b' la,. Beca%se o( all t$is ,e $ol! t$at t$e rig$t or %s%(r%ct o( t$e to,n o( =aoa' over its m%nici&al ,aters &artic%larl' t$e (ort' o!! (is$er' lots incl%!e! in t$e attac$ment b' t$e )$eri(( is not s%b9ect to e4ec%tion. B%t ,e $ol! t$at t$e reven%e or income coming (rom t$e renting o( t$ese (is$er' lots is certainl' s%b9ect to e4ec%tion. *t ma' be &ro(itable i( not necessar' to !isting%is$ t$is +in! o( reven%e (rom t$at !erive! (rom ta4es m%nici&al licenses an! mar+et (ees are &rovi!e! (or an! im&ose! b' t$e la, t$e' are inten!e! &rimaril' an! e4cl%sivel' (or t$e &%r&ose o( (inancing t$e governmental activities an! (%nctions o( m%nici&al cor&orations. *n (act t$e real estate ta4es collecte! b' a m%nici&alit' !o not all go to it. # &ortion t$ereo( goes to t$e &rovince in t$e &ro&ortion &rovi!e! (or b' la,. For t$e same reason m%nici&al mar+ets are establis$e! not onl' to &rovi!e a &lace ,$ere t$e &eo&le ma' sell an! b%' commo!ities b%t also to &rovi!e &%blic reven%es (or t$e m%nici&alit'. 2o man' to,ns mar+et (ees constit%te t$e b%l+ o( t$eir assets an! incomes. 2$ese reven%es are (i4e! an! !e(inite so m%c$ so t$at t$e ann%al a&&ro&riations (or t$e e4&enses o( t$e m%nici&alities are base! on t$ese reven%es. Not so ,it$ t$e income !erive! (orm (is$eries. *n t$e (irst &lace t$e %s%(r%ct over m%nici&al ,aters ,as grante! b' t$e Legislat%re merel' to $el& or bolster %& t$e econom' o( m%nici&al government. 2$ere are man' to,ns in t$e =$ili&&ines s&eciall' in t$e interior ,$ic$ !o not $ave m%nici&al ,aters (or (is$er' &%r&ose an! 'et ,it$o%t m%c$ so%rce o( reven%e t$e' can (%nction ,$ic$ goes to &rove t$at t$is +in! o( reven%e is not in!is&ensable (or t$e &er(ormance o( governmental
117

(%nctions. *n t$e secon! &lace t$e amo%nt o( t$is income is (ar (rom !e(inite or (i4e!. *t !e&en!s %&on t$e amo%nts ,$ic$ &ros&ective bi!!ers or lessees are ,illing to &a'. *( (is$ing on t$ese marine ,ater la+es an! rivers in t$e m%nici&alit' is goo! t$e bi!s ,o%l! be $ig$ an! t$e income ,o%l! be s%bstantial. *( t$e (is$ in t$ese ,aters is !e&lete! or i( (or some reasons or anot$er (is$ing is not &ro(itable t$en t$e income ,o%l! be greatl' re!%ce!. *n ot$er ,or!s to man' m%nici&alities engage! in t$is b%siness o( letting o%t m%nici&al ,aters (or (is$ing &%r&oses it is a sort o( si!eline so t$at even (or (is$ing &%r&oses it is sort o( si!eline so t$at even ,it$o%t it t$e m%nici&alit' ma' still contin%e (%nctioning an! &er(orm its essential !%ties as s%c$ m%nici&al cor&orations. 6e call t$is activit' o( m%nici&alities in renting m%nici&al ,aters (or (is$ing &%r&oses as a b%siness (or t$e reasons t$at t$e la, itsel( ;)ec. /1/1 #!ministrative Co!e alrea!' mentione! an! .%ote!< allo,e! sai! m%nici&alities to engage in it (or &ro(it. #n! it is b%t 9%st t$at a to,n so engage! s$o%l! &a' an! li.%i!ate obligations contracte! in connection ,it$ sai! (is$ing b%siness ,it$ t$e income !erive! t$ere(rom.
118

Local Governments Digests

Uploaded by

Document Information

Original Title

Copyright

Available Formats

Share this document

Share or Embed Document

Sharing Options

Did you find this document useful?

Is this content inappropriate?

Copyright:

Available Formats

Local Governments Digests

Uploaded by

Copyright:

Available Formats

Mabelle O.

Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

#liciaHs sit%ation in t$e instant case is stri+ingl'

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

1. 6$et$er &etitioners are s%bsistence or marginal

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

)ection 1C1 o( B.=. Blg. 117: )angg%niang =anlala,igan

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests

Mabelle O. Nebres | Local Governments Case Digests