consti 2 law cases

7/24/2019 consti 2 law cases

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EN BANC[G.R. No. 110249. August 21, 1997]

ALFREDO TANO, petitioners, vs.GOV. SALVADOR P.SOCRATES, , respondents.

D E C I S I O NDAVIDE, R.,J.!Petitioners caption their petition as one for Certiorari,Injunction With

Preliminary Mandatory Injunction,with Prayer for Temporary estrainin! "rder andpray that this Court# $%& declare as unconstitutional# $a& "rdinance No' %()*+, dated%( ecem-er %**+, of the Sangguniang Panlungsodof Puerto Princesa. $-& "/ce"rder No' +0, 1eries of %**0, dated ++ 2anuary %**0, issued -y Actin! City MayorAmado 3' 3ucero of Puerto Princesa City. and $c& esolution No' 00, "rdinance No' +,1eries of %**0, dated %* 4e-ruary %**0, of the Sangguniang PanlalawiganofPalawan. $+& enjoin the enforcement thereof. and $0& restrain respondents Pro5incialand City Prosecutors of Palawan and Puerto Princesa City and 2ud!es of e!ional

Trial Courts, Metropolitan Trial Courts6%7and Municipal Circuit Trial Courts in Palawan

from assumin! jurisdiction o5er and hearin! cases concernin! the 5iolation of the"rdinances and of the "/ce "rder'

More appropriately, the petition is, and shall -e treated as, a special ci5il actionfor certiorariand prohi-ition'

The followin! is petitioners summary of the factual antecedents !i5in! rise tothe petition#%' "n ecem-er %(, %**+, the 1an!!unian! Panlun!sod n! Puerto Princesa Cityenacted "rdinance No' %()*+ which too8 e9ect on 2anuary %, %**0 entitled# AN"INANCE BANNIN: T;E 1;IPMENT "4 A33 3I %, %**0 T" 2AN=A> %, %**? ANP"


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1ection ' It shall -e unlawful 6for7 any person or any -usiness enterprise orcompany to ship out from Puerto Princesa City to any point of destination either 5iaaircraft or seacraft of any li5e sh and lo-ster ecept 1EA BA11, CAT4I1;, M=4I1;,AN MI3F4I1; 4IE1'1ection (' Penalty Clause' ) Any persons and or -usiness entity 5iolatin! this"rdinance shall -e penaliGed with a ne of not more than P(,HHH'HH or

imprisonment of not more than twel5e $%+& months, cancellation of their permit todo -usiness in the City of Puerto Princesa or all of the herein stated penalties, uponthe discretion of the court'1ection ' If the owner andor operator of the esta-lishment found 5ilatin! thepro5isions of this ordinance is a corporation or a partnership, the penalty prescri-edin 1ection ( hereof shall -e imposed upon its president andor :eneral Mana!er orMana!in! Partner andor Mana!er, as the case may-e 6sic7'1ection J' Any eistin! ordinance or any pro5ision of any ordinance inconsistent to6sic7 this ordinance is deemed repealed'1ection ?' This "rdinance shall ta8e e9ect on 2anuary %, %**0'1" "AINE'

+' To implement said city ordinance, then Actin! City Mayor Amado 3' 3ucero issued"/ce "rder No' +0, 1eries of %**0 dated 2anuary ++, %**0 which reads as follows#In the interest of pu-lic ser5ice and for purposes of City "rdinance No' P+)%)J,otherwise 8nown as AN "INANCE EK=IIN: AN> PE1"N EN:A:E "INTENIN: T" EN:A:E IN AN> B=1INE11, TAE, "CC=PATI"N, CA33IN: "P"4E11I"N " ;A "4 T;E ATIC3E1 4" W;IC; APEMIT I1 EK=IE T" BE ;A, T" "BTAIN 4I1T A MA>"1 PEMIT and City"rdinance No' %()*+, AN "INANCE BANNIN: T;E 1;IPMENT "4 A33 3I %, %**0 T" 2AN=A>%, %**?, you are here-y authoriGed and directed to chec8 or conduct necessaryinspections on car!oes containin! li5e sh and lo-ster -ein! shipped out from thePuerto Princesa Airport, Puerto Princesa Wharf or at any port within the jurisdiction

of the City to any point of destinations 6sic7 either 5ia aircraft or seacraft'The purpose of the inspection is to ascertain whether the shipper possessed thereDuired Mayors Permit issued -y this "/ce and the shipment is co5ered -y in5oiceor clearance issued -y the local o/ce of the Bureau of 4isheries and ADuaticesources and as to compliance with all other eistin! rules and re!ulations on thematter'Any car!o containin! li5e sh and lo-ster without the reDuired documents as statedherein must -e held for proper disposition'In the pursuit of this "rder, you are here-y authoriGed to coordinate with the PA3Mana!er, the PPA Mana!er, the local PNP 1tation and other o/ces concerned forthe needed support and cooperation'4urther, that the usual courtesy and diplomacymust -e o-ser5ed at all times in the conduct of the inspection'Please -e !uided accordin!ly'

0' "n 4e-ruary %*, %**0, the 1an!!unian! Panlalawi!an, Pro5incial :o5ernment ofPalawan enacted esolution No' 00 entitled# A E1"3=TI"N P";IBITIN: T;ECATC;IN:, :AT;EIN:, P"11E11IN:, B=>IN:, 1E33IN: AN 1;IPMENT "4 3I


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1PAWNIN:, TAACNA :I:A1 $TAF3"B"&, PINCTAA MA:AITE4EA$M"T;EPEA3, ">1TE1, :IANT C3AM1 AN "T;E 1PECIE1&, PENAE=1 M"N""N $TI:EPAWN)BEEE 1ILE " M"T;E&, EPINEP;E3=1 1=I33=1 $3"BA " :EEN:"=PE& AN 4AMI3># BA3I1TIAE $T"PICA3 AK=AI=M 4I1;E1& 4" A PEI"4IEA1 IN AN C"MIN: 4"M PA3AWAN WATE1, the full tet of whichreads as follows#

W;EEA1, scientic and factual researches 6sic7 and studies disclose that only 5e$(& percent of the corals of our pro5ince remain to -e in ecellent condition as 6a7ha-itat of marine coral dwellin! aDuatic or!anisms.W;EEA1, it cannot -e !ainsaid that the destruction and de5astation of the coralsof our pro5ince were principally due to ille!al shin! acti5ities li8e dynamite shin!,sodium cyanide shin!, use of other o-noious su-stances and other relatedacti5ities.W;EEA1, there is an imperati5e and ur!ent need to protect and preser5e theeistence of the remainin! ecellent corals and allow the de5astated ones torein5i!orate and re!enerate themsel5es into 5itality within the span of 5e $(&years.W;EEA1, 1ec' ?, Par' %, 1u-)Par' C"N1IEATI"N1%' 1ec' +)A $ep' Act J%H&' It is here-y declared, the policy of the state that theterritorial and political su-di5isions of the 1tate shall enjoy !enuine and meanin!fullocal autonomy to ena-le them to attain their fullest de5elopment as self reliantcommunities and ma8e them more e9ecti5e partners in the attainment of national!oals' Toward this end, the 1tate shall pro5ide for 6a7 more responsi5e andaccounta-le local !o5ernment structure instituted throu!h a system ofdecentraliGation where-y local !o5ernment units shall -e !i5en more powers,authority, responsi-ilities and resources'+' 1ec' ()A $'A' J%H&' Any pro5ision on a power of 6a7 local :o5ernment =nit shall-e li-eraly interpreted in its fa5or, and in case of dou-t, any Duestion thereon shall


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-e resol5ed in fa5or of de5olution of powers and of the lower !o5ernment units' Anyfair and reasona-le dou-ts as to the eistence of the power shall -e interpreted infa5or of the 3ocal :o5ernment =nit concerned'0' 1ec' ()C $'A' J%H&' The !eneral welfare pro5isions in this Code shall -e li-erallyinterpreted to !i5e more powers to local !o5ernment units in acceleratin! economicde5elopment and up!radin! the Duality of life for the people in the community'

' 1ec' % $'A' J%H&' :eneral Welfare' ) E5ery local !o5ernment unit shall eercisethe powers epressly !ranted, those necessarily implied therefrom, as well aspowers necessary, appropriate, or incidental for its e/cient and e9ecti5e!o5ernance. and those which are essential to the promotion of the !eneral welfare'1ection III' EC3AATI"N "4 P"3IC>' ) It is here-y declared to -e the policy of thePro5ince of Palawan to protect and conser5e the marine resources of Palawan notonly for the !reatest !ood of the majority of the present !eneration -ut with 6the7proper perspecti5e and consideration of 6sic7 their prosperity, and to attain this end,the 1an!!unian! Panlalawi!an henceforth declares that is 6sic7 shall -e unlawful forany person or any -usiness entity to en!a!e in catchin!, !atherin!, possessin!,-uyin!, sellin! and shipment of li5e marine coral dwellin! aDuatic or!anisms asenumerated in 1ection % hereof in and comin! out of Palawan Waters for a period of

5e $(& years.1ection I


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4irst, the "rdinances depri5ed them of due process of law, their li5elihood, andunduly restricted them from the practice of their trade, in 5iolation of 1ection +,Article @II and 1ections + and J of Article @III of the %*?J Constitution'

1econd, "/ce "rder No' +0 contained no re!ulation nor condition under whichthe Mayors permit could -e !ranted or denied. in other words, the Mayor had thea-solute authority to determine whether or not to issue permit'

Third, as "rdinance No' + of the Pro5ince of Palawan alto!ether prohi-ited thecatchin!, !atherin!, possession, -uyin!, sellin! and shippin! of li5e marine coraldwellin! or!anisms, without any distinction whether it was cau!ht or !atheredthrou!h lawful shin! method, the "rdinance too8 away the ri!ht of petitioners)shermen to earn their li5elihood in lawful ways. and insofar as petitioners)mem-ers of Airline 1hippers Association are concerned, they were unduly pre5entedfrom pursuin! their 5ocation and enterin! into contracts which are proper,necessary, and essential to carry out their -usiness endea5ors to a successfulconclusion'

4inally, as "rdinance No' + of the 1an!!unian! Panlalawi!an is null and 5oid, thecriminal cases -ased thereon a!ainst petitioners Tano and the others ha5e to -edismissed'

In the esolution of %( 2une %**0 we reDuired respondents to comment on thepetition, and furnished the "/ce of the 1olicitor :eneral with a copy thereof'

In their comment led on %0 Au!ust %**0, pu-lic respondents :o5ernor1ocrates and Mem-ers of the 1an!!unian! Panlalawi!an of Palawan defended the5alidity of "rdinance No'+, 1eries of %**0, as a 5alid eercise of the Pro5incial:o5ernments power under the !eneral welfare clause $1ection % of the 3ocal:o5ernment Code of %**% 6hereafter, 3:C7&, and its specic power to protect theen5ironment and impose appropriate penalties for acts which endan!er theen5ironment, such as dynamite shin! and other forms of destructi5e shin! under1ection J $a& $%& $5i&, 1ection (? $a& $%& $5i&, and 1ection ? $a& $%& $5i&, of the3:C' They claimed that in the eercise of such powers, the Pro5ince of Palawan hadthe ri!ht and responsi-ilty to insure that the remainin! coral reefs, where sh dwells

6sic7, within its territory remain healthy for the future !eneration' The "rdinance,they further asserted, co5ered onlyli5e marine coral dwellin! aDuaticor!anisms which were enumerated in the ordinance and ecluded other 8inds of li5emarine aDuatic or!anisms not dwellin! in coral reefs. -esides the prohi-ition was foronly 5e $(& years to protect and preser5e the pristine coral and allow thosedama!ed to re!enerate'

Aforementioned respondents li8ewise maintained that there was no 5iolation ofdue process and eDual protection clauses of the Constitution' As to the former,pu-lic hearin!s were conducted -efore the enactment of the "rdinance which,undou-tedly, had a lawful purpose and employed reasona-le means. while as to thelatter, a su-stantial distinction eisted -etween a sherman who catches li5e shwith the intention of sellin! it li5e, and a sherman who catches li5e sh with nointention at all of sellin! it li5e, i'e', the former uses sodium cyanide while the latterdoes not' 4urther, the "rdinance applied eDually to all those -elon!in! to one class'

"n +( "cto-er %**0 petitioners led an =r!ent Plea for the Immediate Issuanceof a Temporary estrainin! "rder claimin! that despite the pendency of this case,Branch (H of the e!ional Trial Court of Palawan was -ent on proceedin! withCriminal Case No' %%++0 a!ainst petitioners anilo Tano, Alfredo Tano, Eulo!io

Tremocha, omualdo Tano, Baldomero Tano, Andres 3emihan and An!el de Mesa for5iolation of "rdinance No' + of the 1an!!unian! Panlalawi!an of Palawan' Actin! on


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said plea, we issued on %% No5em-er %**0 a temporary restrainin! order directin!2ud!e An!el Miclat of said court to cease and desist from proceedin! with thearrai!nment and pre)trial of Criminal Case No' %%++0'

"n %+ 2uly %**, we ecused the "/ce of the 1olicitor :eneral from lin! acomment, considerin! that as claimed -y said o/ce in its Manifestation of +? 2une%**, respondents were already represented -y counsel'

The rest of the respondents did not le any comment on the petition'In the resolution of %( 1eptem-er %**, we resol5ed to consider the comment

on the petition as the Answer, !a5e due course to the petition and reDuired theparties to su-mit their respecti5e memoranda'6+7

"n ++ April %**J we ordered impleaded as party respondents the epartmentof A!riculture and the Bureau of 4isheries and ADuatic esources and reDuired the"/ce of the 1olicitor :eneral to comment on their -ehalf' But in li!ht of the lattersmotion of * 2uly %**J for an etension of time to le the comment which would onlyresult in further delay, we dispensed with said comment'

After due deli-eration on the pleadin!s led, we resol5ed to dismiss this petitionfor want of merit, on ++ 2uly %**J, and assi!ned it to theponentefor the writin! ofthe opinion of the Court'

IThere are actually two sets of petitioners in this case' The rst is composed of

Alfredo Tano, Baldomero Tano, anilo Tano, omualdo Tano, Teocenes Midello, An!elde Mesa, Eulo!io Tremocha, 4elipe "n!onion, 2r', Andres 3inijan, and 4elimon deMesa, who were criminally char!ed with 5iolatin! SangguniangPanlalawiganesolution No' 00 and "rdinance No' +, 1eries of %**0, of the Pro5inceof Palawan, in Criminal Case No' *0)H()C of the % stMunicipal Circuit Trial Court$MCTC& of Palawan.607and o-ert 3im and


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prohi-ition' It must further -e stressed that e5en if the petitioners did le motions toDuash, the denial thereof would not forthwith !i5e rise to a cause of action underule ( of the ules of Court' The !eneral rule is that where a motion to Duash isdenied, the remedy therefrom is notcertiorari,-ut for the party a!!rie5ed there-y to!o to trial without prejudice to reiteratin! special defenses in5ol5ed in said motion,and if, after trial on the merits of ad5erse decision is rendered, to appeal therefrom

in the manner authoriGed -y law'6J7And , e5en where in an eceptional circumstancesuch denial may -e the su-ject of a special ci5il action for certiorari, a motion forreconsideration must ha5e to -e led to allow the court concerned an opportunity tocorrect its errors, unless such motion may -e dispensed with -ecause of eistin!eceptional circumstances'6?74inally, e5en if a motion for reconsideration has -eenled and denied, the remedy under ule ( is still una5aila-le a-sent any showin!of the !rounds pro5ided for in 1ection % thereof' 6*74or o-5ious reasons, the petitionat -ar does not, and could not ha5e , alle!ed any of such !rounds'

As to the second set of petitioners, the instant petition is o-5iously one forEC3AAT"> E3IE4, i.e., for a declaration that the "rdinances in Duestion are anullity ''' for -ein! unconstitutional'6%H7As such, their petition must li8ewise fail, asthis Court is not possessed of ori!inal jurisdiction o5er petitions for declaratory relief

e5en if only Duestions of law are in5ol5ed, 6%%7it -ein! settled that the Court merelyeercises appellate jurisdiction o5er such petitions'6%+7

IIE5en !rantin! arguendo that the rst set of petitioners ha5e a cause of action

ripe for the etraordinary writ of certiorari, there is here a clear disre!ard of thehierarchy of courts, and no special and important reason or eceptional orcompellin! circumstance has -een adduced why direct recourse to us should -eallowed' While we ha5e concurrent jurisdiction with e!ional Trial courts and withthe Court of Appeals to issue writs of certiorari, prohi-ition, mandamus, quowarranto, habeas corpus and injunction, such concurrence !i5es petitioners nounrestricted freedom of choice of court forum, so we held in People v' Cuaresma#6%07

This concurrence of jurisdiction is not to -e ta8en as accordin! to parties see8in!

any of the writs an a-solute unrestrained freedom of choice of the court to whichapplication therefor will -e directed' There is after all hierarchy of courts' Thathierarchy is determinati5e of the 5enue of appeals, and should also ser5e as a!eneral determinant of the appropriate forum for petitions for the etraordinarywrits' A -ecomin! re!ard for that judicial hierarchy most certainly indicates thatpetitions for the issuance of etraordinary writs a!ainst rst le5el $inferior& courtsshould -e led with the e!ional Trial Court, and those a!ainst the latter, with theCourt of Appeals' A direct in5ocation of the 1upreme Courts ori!inal jurisdiction toissue these writs should -e allowed only when there are special and importantreasons therefor, clearly and specically set out in the petition' This is esta-lishedpolicy' It is a policy necessary to pre5ent inordinate demands upon the Courts timeand attention which are -etter de5oted to those matters within its eclusi5e

jurisdiction, and to pre5ent further o5er)crowdin! of the Courts doc8et'The Court feels the need to rea/rm that policy at this time, and to enjoin strictadherence thereto in the li!ht of what it percei5es to -e a !rowin! tendency on thepart of liti!ants and lawyers to ha5e their applications for the so)calledetraordinary writs, and sometimes e5en their appeals, passed upon andadjudicated directly and immediately -y the hi!hest tri-unal of the land'

In 1antia!o v'


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only -ecause of the imposition upon the precious time of this Court, -ut also-ecause of the ine5ita-le and resultant delay, intended or otherwise, in theadjudication of the case which often has to -e remanded or referred to the lowercourt, the proper forum under the rules of procedure, or as -etter eDuipped toresol5e the issues since this Court is not a trier of facts' We reiterated the judicialpolicy that this Court will not entertain direct resort to it unless the redress desired

cannot -e o-tained in the appropriate courts or where eceptional and compellin!circumstances justify a5ailment of a remedy within and callin! for the eercise of6its7 primary jurisdiction'

IIINotwithstandin! the fore!oin! procedural o-stacles a!ainst the rst set of

petitioners, we opt to resol5e this case on its merits considerin! that the lifetime ofthe challen!ed "rdinances is a-out to end' "rdinance No' %()*+ of the City ofPuerto Princesa is e9ecti5e only up to % 2anuary %**?, while "rdinance No' + of thePro5ince of Palawan, enacted on %* 4e-ruary %**0, is e9ecti5e for only 5e $(&years' Besides, these "rdinances were undou-tedly enacted in the eercise ofpowers under the new 3:C relati5e to the protection and preser5ation of theen5ironment and are thus no5el and of paramount importance' No further delay

then may -e allowed in the resolution of the issues raised'It is of course settled that laws $includin! ordinances enacted -y local

!o5ernment units& enjoy the presumption of constitutionality'6%(7To o5erthrow thispresumption, there must -e a clear and uneDui5ocal -reach of the Constitution, notmerely a dou-tful or ar!umentati5e contradiction' In short, the conict with theConstitution must -e shown -eyond reasona-le dou-t' 6%7Where dou-t eists, e5enif well founded, there can -e no ndin! of unconstitutionality' To dou-t is to sustain'6%J7

After a scrunity of the challen!ed "rdinances and the pro5isions of theConstitution petitioners claim to ha5e -een 5iolated, we nd petitioners contentions-aseless and so hold that the former do not su9er from any inrmity, -oth underthe Constitution and applica-le laws'

Petitioners specically point to 1ection +, Article @II and 1ections + and J, Article@III of the Constitution as ha5in! -een trans!ressed -y the "rdinances'

The pertinent portion of 1ection + of Article @II reads#1EC' +'

The 1tate shall protect the nations marine wealth in its archipela!ic waters,territorial sea, and eclusi5e economic Gone, and reser5e its use and enjoymenteclusi5ely to 4ilipino citiGens'

The Con!ress may, -y law, allow small)scale utiliGation of natural resources -y4ilipino citiGens, as well as cooperati5e sh farmin!, with priority to su-sistenceshermen and shwor8ers in ri5ers, la8es, -ays, and la!oons'

1ections + and J of Article @III pro5ide#1ec' +' The promotion of social justice shall include the commitment to createeconomic opportunities -ased on freedom of initiati5e and self)reliance'

1EC' J' The 1tate shall protect the ri!hts of su-sistence shermen, especially oflocal communities, to the preferential use of the communal marine and shin!resources, -oth inland and o9shore' It shall pro5ide support to such shermenthrou!h appropriate technolo!y and research, adeDuate nancial, production, andmar8etin! assistance, and other ser5ices' The 1tate shall also protect, de5elop, andconser5e such resources' The protection shall etend to o9shore shin! !rounds of
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su-sistence shermen a!ainst forei!n intrusion' 4ishwor8ers shall recei5e a justshare from their la-or in the utiliGation of marine and shin! resources'

There is a-solutely no showin! that any of the petitioners Dualies as asu-sistence or mar!inal sherman' In their petition, petitioner Airline 1hippersAssociation of Palawan is descri-ed as a pri5ate association composed of MarineMerchants. petitioners o-ert 3im and


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their mandated protection, de5elopment, and conser5ation as necessarilyreco!niGed -y the framers of the Constitution, imply certain restrictions on whate5erri!ht of enjoyment there may -e in fa5or of anyone' Thus, as to the curtailment ofthe preferential treatment of mar!inal sherman, the followin! echan!e -etweenCommissioner 4rancisco odri!o and Commissioner 2ose 4'1' Ben!Gon, 2r', too8 placeat the plenary session of the Constitutional Commission#

M' "I:"#3et us discuss the implementation of this -ecause I would not raise thehopes of our people, and afterwards fail in the implementation' ;ow will this-e implementedO Will there -e a licensin! or !i5in! of permits so that!o5ernment o/cials will 8now that one is really a mar!inal shermanO "r ifpoliceman say that a person is not a mar!inal sherman, he can show hispermit, to pro5e that indeed he is one'

M' BEN:L"N#Certainly, there will -e some mode of licensin! insofar as this is concernedand this particular Duestion could -e tac8led when we discuss the Article on3ocal :o5ernments )) whether we will lea5e to the local !o5ernments or toCon!ress on how these thin!s will -e implemented' But certainly, I thin8 our

Con!ressmen and our local o/cials will not -e -ereft of ideas on how toimplement this mandate'

M' "I:"#

1o, once one is licensed as a mar!inal sherman, he can !o anywhere in thePhilippines and sh in any shin! !rounds'

M' BEN:L"N#1u-ject to whate5er rules and re!ulations and local laws that may -epassed, may -e eistin! or will -e passed'6+%7$underscorin! supplied foremphasis&'

What must li8ewise -e -orne in mind is the state policy enshrined in theConstitution re!ardin! the duty of the 1tate to protect and ad5ance the ri!ht of the

people to a -alanced and healthful ecolo!y in accord with the rhythm and harmonyof nature'6++7"n this score, in "posa v' 4actoran,6+07this Court declared#While the ri!ht to -alanced and healthful ecolo!y is to -e found under theeclaration of Principles the 1tate Policies and not under the Bill of i!hts, it doesnot follow that it is less important than any of the ci5il and political ri!htsenumerated in the latter' 1uch a ri!ht -elon!s to a di9erent cate!ory of ri!htsalto!ether for it concerns nothin! less than self)preser5ation and self)perpetuation )aptly and ttin!ly stressed -y the petitioners ) the ad5ancement of which may e5en-e said to predate all !o5ernments and constitutions' As a matter of fact, these-asic ri!hts need not e5en -e written in the Constitution for they are assumed toeist from the inception of human8ind' If they are now eplicitly mentioned in thefundamental charter, it is -ecause of the well)founded fear of its framers that unlessthe ri!hts to a -alanced and healthful ecolo!y and to health are mandated as statepolicies -y the Constitution itself, there-y hi!hli!htin! their continuin! importanceand imposin! upon the state a solemn o-li!ation to preser5e the rst and protectand ad5ance the second , the day would not -e too far when all else would -e lostnot only for the present !eneration, -ut also for those to come ) !enerations whichstand to inherit nothin! -ut parched earth incapa-le of sustainin! life'

The ri!ht to a -alanced and healthful ecolo!y carries with it a correlati5e duty torefrain from impairin! the en5ironment '''
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The 3:C pro5isions in5o8ed -y pri5ate respondents merely see8 to !i5e eshand -lood to the ri!ht of the people to a -alanced and healthful ecolo!y' In fact, the:eneral Welfare Clause, epressly mentions this ri!ht#1EC' %' eneral !elare.)) E5ery local !o5ernment unit shall eercise the powersepressly !ranted, those necessarily implied therefrom, as well as powersnecessary, appropriate, or incidental for its e/cient and e9ecti5e !o5ernance, and

those which are essential to the promotion of the !eneral welfare' Within theirrespecti5e territorial jurisdictions, local !o5ernment units shall ensure and support,amon! other thin!s, the preser5ation and enrichment of culture, promote healthand safety, enhance the ri!ht of the people to a -alanced ecolo!y, encoura!e andsupport the de5elopment of appropriate and self)reliant scientic and technolo!icalcapa-ilities, impro5e pu-lic morals, enhance economic prosperity and social justice,promote full employment amon! their residents, maintain peace and order, andpreser5e the comfort and con5enience of their inha-itants' $underscorin! supplied&'Moreo5er, 1ection ($c& of the 3:C eplicitly mandates that the !eneral welfarepro5isions of the 3:C shall -e li-erally interpreted to !i5e more powers to the local!o5ernment units in acceleratin! economic de5elopment and up!radin! the Dualityof life for the people of the community'

The 3:C 5ests municipalities with the power to !rant shery pri5ile!es inmunicipal waters and to impose rentals, fees or char!es therefor. to penaliGe, -yappropriate ordinances, the use of eplosi5es, noious or poisonous su-stances,electricity, muro"ami, and other deleterious methods of shin!. and to prosecuteany 5iolation of the pro5isions of applica-le shery laws'6+74urther,the sangguniang bayan, thesangguniang panlungsodand thesangguniang

panlalawigan aredirected to enact ordinances for the !eneral welfare of themunicipality and its inha-itants, which shall include, inter alia, ordinances that6p7rotect the en5ironment and impose appropriate penalties for acts whichendan!er the en5ironment such as dynamite shin! and other forms of destructi5eshin! ''' and such other acti5ities which result in pollution, acceleration ofeutrophication of ri5ers and la8es or of ecolo!ical im-alance' 6+(7

4inally, the centerpiece of 3:C is the system of decentraliGation 6+7as epresslymandated -y the Constitution'6+J7Indispensa-le thereto is de5olution and the 3:Cepressly pro5ides that 6a7ny pro5ision on a power of a local !o5ernment unit shall-e li-erally interpreted in its fa5or, and in case of dou-t, any Duestion thereon shall-e resol5ed in fa5or of de5olution of powers and of the lower local !o5ernment unit'Any fair and reasona-le dou-t as to the eistence of the power shall -e interpretedin fa5or of the local !o5ernment unit concerned, 6+?7e5olution refers to the act -ywhich the National :o5ernment confers power and authority upon the 5arious local!o5ernment units to perform specic functions and responsi-ilities' 6+*7

"ne of the de5ol5ed powers enumerated in the section of the 3:C on de5olutionis the enforcement of shery laws in municipal waters includin! the conser5ation ofman!ro5es'60H7This necessarily includes enactment of ordinances to e9ecti5ely carryout such shery laws within the municipal waters'

The term municipal waters, in turn, include not only streams, la8es, and tidalwaters within the municipality, not -ein! the su-ject of pri5ate ownership and notcomprised within the national par8s, pu-lic forest, tim-er lands, forest reser5es, orshery reser5es, -ut also marine waters included -etween two lines drawnperpendicularly to the !eneral coastline from points where the -oundary lines of themunicipality or city touch the sea at low tide and a third line parallel with the!eneral coastline and fteen 8ilometers from it'60%7=nder P'' No' JH, the marine
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waters included in municipal waters is limited to three nautical miles from the!eneral coastline usin! the a-o5e perpendicular lines and a third parallel line'

These shery laws which local !o5ernment units may enforce under 1ection%J$-&, $+&, $i& in municipal waters include# $%& P'' No' JH. $+& P'' No' %H%(which, inter alia, authoriGes the esta-lishment of a closed season in any Philippinewater if necessary for conser5ation or ecolo!ical purposes. $0& P'' No' %+%* which

pro5ides for the eploration, eploitation, utiliGation, and conser5ation of coralresources. $& 'A' No' (J, as amended -y B'P' Bl!' (?, which ma8es it unlawfulfor any person, association, or corporation to catch or cause to -e cau!ht, sell, o9erto sell, purchase, or ha5e in possession any of the sh speciecalled gobiidaeor ipondurin! closed season. and $(& 'A' No' (% which prohi-itsand punishes electroshin!, as well as 5arious issuances of the B4A'

To those specically de5ol5ed insofar as the control and re!ulation of shin! inmunicipal waters and the protection of its marine en5ironment are concerned, must-e added the followin!#

%' Issuance of permits to construct sh ca!es within municipal waters.+' Issuance of permits to !ather aDuarium shes within municipal waters.0' Issuance of permits to !ather 8apis shells within municipal waters.

' Issuance of permits to !atherculture shelled mollus8s within municipalwaters.

(' Issuance of licenses to esta-lish seaweed farms within municipal waters.' Issuance of licenses to esta-lish culture pearls within municipal waters.J' Issuance of auiliary in5oice to transport sh and shery products. and?' Esta-lishment of closed season in municipal waters'

These functions are co5ered in the Memorandum of A!reement of ( April %**-etween the epartment of A!riculture and the epartment of Interior and 3ocal:o5ernment'

In li!ht then of the principles of decentraliGation and de5olution enshrined in the3:C and the powers !ranted to local !o5ernment units under 1ection % $the:eneral Welfare Clause&, and under 1ections %*, J $a& $%& $5i&, (? $a& $%& $5i&

and ? $a& $%& $5i&, which unDuestiona-ly in5ol5e the eercise of police power, the5alidity of the Duestioned "rdinances cannot -e dou-ted'

Parenthetically, we wish to add that these "rdinances nd full support under'A' No' J%%, otherwise 8nown as the 1trate!ic En5ironmental Plan $1EP& forPalawan Act, appro5ed on %* 2uly %**+' This statute adopts a comprehensi5eframewor8 for the sustaina-le de5elopment of Palawan compati-le with protectin!and enhancin! the natural resources and endan!ered en5ironment of the pro5ince,which shall ser5e to !uide the local !o5ernment of Palawan and the !o5ernmenta!encies concerned in the formulation and implementation of plans, pro!rams andprojects a9ectin! said pro5ince'60+7

At this time then, it would -e appropriate to determine the relation -etween theassailed "rdinances and the aforesaid powers of the Sangguniang Panlungsodofthe City of Puerto Princesa and the Sangguniang Panlalawiganof the Pro5ince ofPalawan to protect the en5ironment' To -e!in, we ascertain the purpose of the"rdinances as set forth in the statement of purposes or declaration of policiesDuoted earlier'

It is clear to the Court that -oth "rdinances ha5e two principal o-jecti5es orpurposes# $%& to esta-lish a closed season for the species of sh or aDuatic animalsco5ered therein for a period of 5e years, and $+& to protect the corals of the marine
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waters of the City of Puerto Princesa and the Pro5ince of Palawan from furtherdestruction due to ille!al shin! acti5ities'

The accomplishment of the rst o-jecti5e is well within the de5ol5ed power toenforce shery laws in municipal waters, such as P'' No' %H%(, which allows theesta-lishment of closed seasons' The de5olution of such power has -een epresslyconrmed in the Memorandum of A!reement of ( April %** -etween the

epartment of A!riculture and the epartment of Interior and 3ocal :o5ernment'The realiGation of the second o-jecti5e falls within -oth the !eneral welfare

clause of the 3:C and the epress mandate thereunder to cities and pro5inces toprotect the en5ironment and impose appropriate penalties for acts which endan!erthe en5ironment'6007

The destruction of the coral reefs results in serious, if not irrepara-le, ecolo!icalim-alance, for coral reefs are amon! the natures life)support systems'607Theycollect, retain, and recycle nutrients for adjacent nearshore areas such asman!ro5es, sea!rass -eds, and reef ats. pro5ide food for marine plants andanimals. and ser5e as a protecti5e shelter for aDuatic or!anisms' 60(7It is said that6e7colo!ically, the reefs are to the oceans what forests are to continents# they areshelter and -reedin! !rounds for sh and plant species that will disappear without

them'607

The prohi-ition a!ainst catchin! li5e sh stems, in part, from the modernphenomenon of li5e)sh trade which entails the catchin! of so)called eotic tropicalspecies of sh not only for aDuarium use in the West, -ut also for the mar8et for li5e-anDuet sh 6which7 is 5irtually insatia-le in e5er more auent Asia' 60J7These eoticspecies are coral)dwellers, and shermen catch them -y di5in! in shallow waterwith corraline ha-itats and sDuirtin! sodium cyanide poison at passin! sh directlyor onto coral cre5ices. once a9ected the sh are immo-iliGed 6merely stunned7 andthen scooped -y hand'60?7The di5er then surfaces and dumps his catch into asu-mer!ed net attached to the s8i9 ' Twenty minutes later, the sh can swimnormally'Bac8 on shore, they are placed in holdin! pens, and within a few wee8s,they epel the cyanide from their system and are ready to -e hauled' Then they are

placed in saltwater tan8s or pac8a!ed in plastic -a!s lled with seawater forshipment -y air frei!ht to major mar8ets for li5e food sh' 60*7While the sh aremeant to sur5i5e, the opposite holds true for their former home as 6a7fter thesherman sDuirts the cyanide, the rst thin! to perish is the reef al!ae, on whichsh feed' ays later, the li5in! coral starts to epire' 1oon the reef loses its functionas ha-itat for the sh, which eat -oth the al!ae and in5erte-rates that clin! to thecoral' The reef -ecomes an underwater !ra5eyard, its s8eletal remains -rittle,-leached of all color and 5ulnera-le to erosion from the poundin! of the wa5es' 6H7Ithas -een found that cyanide shin! 8ills most hard and soft corals within threemonths of repeated application'6%7

The neus then -etween the acti5ities -arred -y "rdinance No' %()*+ of the Cityof Puerto Princesa and the prohi-ited acts pro5ided in "rdinance No' +, 1eries of%**0 of the Pro5ince of Palawan, on one hand, and the use of sodium cyanide, onthe other, is painfully o-5ious' In sum, the pu-lic purpose and reasona-leness of the"rdinances may not then -e contro5erted'

As to "/ce "rder No' +0, 1eries of %**0, issued -y Actin! City Mayor Amado 3'3ucero of the City of Puerto Princesa, we nd nothin! therein 5iolati5e of anyconstitutional or statutory pro5ision' The "rder refers to the implementation of thechallen!ed ordinance and is not the Mayors Permit'
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The dissentin! opinion of Mr' 2ustice 2osue N' Bellosillo relies upon the lac8 ofauthority on the part of the Sangguniang Panlungsodof Puerto Princesa to enact"rdinance No' %(, 1eries of %**+, on the theory that the su-ject thereof is withinthe jurisdiction and responsi-ility of the Bureau of 4isheries and ADuatic esources$B4A& under P'' No' JH, otherwise 8nown as the 4isheries ecree of %*J(. andthat, in any e5ent, the "rdinance is unenforcea-le for lac8 of appro5al -y the

1ecretary of the epartment of Natural esources $N&, li8ewise in accordancewith P'' No' JH'

The majority is una-le to accommodate this 5iew' The jurisdiction andresponsi-ility of the B4A under P' ' no' JH, o5er the mana!ement, conser5ation,de5elopment, protection, utiliGation and disposition of all shery and aDuaticresources of the country is not all)encompassin!' 4irst, 1ection thereof ecludesfrom such jurisdiction and responsi-ility municipal waters, which shall -e under themunicipal or city !o5ernment concerned, ecept insofar as shpens and seaweedculture in municipal in municipal centers are concerned' This section pro5ides,howe5er, that all municipal or city ordinances and resolutions a9ectin! shin! andsheries and any disposition thereunder shall -e su-mitted to the 1ecretary of theepartment of Natural esources for appropriate action and shall ha5e full force and

e9ect only upon his appro5al'6+7

1econd, it must at once -e pointed out that the B4A is no lon!er under theepartment of Natural esources $now epartment of En5ironment and Naturalesources&' Eecuti5e "rder No' *J of 0H 2une %*? transferred the B4A from thecontrol and super5ision of the Minister $formerly 1ecretary& of Natural esources tothe Ministry of A!riculture and 4ood $MA4& and con5erted it into a mere sta9 a!encythereof, inte!ratin! its functions with the re!ional o/ces of the MA4'

In Eecuti5e "rder No' %% of 0H 2anuary %*?J, which reor!aniGed the MA4, theB4A was retained as an attached a!ency of the MA4' And under the Administrati5eCode of %*?J,607the B4A is placed under the Title concernin! the epartment ofA!riculture'67

Therefore, it is incorrect to say that the challen!ed "rdinance of the City of

Puerto Princesa is in5alid or unenforcea-le -ecause it was not appro5ed -y the1ecretary of the EN' If at all, the appro5al that should -e sou!ht would -e that ofthe 1ecretary of the epartment of A!riculture $not EN& of municipal ordinancesa9ectin! shin! and sheries in municipal waters has -een dispensed with in 5iewof the followin! reasons#

$%& 1ection (0 $epealin! Clause& of the 3:C epressly repeals or amends1ection % and +* of P'' No' JH 6(7 insofar that they are inconsistent with thepro5isions of the 3:C'

$+& As discussed earlier, under the !eneral welfare clause of the 3:C, local!o5ernment units ha5e the power, inter alia, to enact ordinances to enhance theri!ht of the people to a -alanced ecolo!y' It li8ewise specically 5ests municipalitieswith the power to !rant shery pri5ile!es in municipal waters, and impose rentals,fees or char!es therefor. to penaliGe, -y appropriate ordinances, the use ofeplosi5es, noious or poisonous su-stances, electricity, muro"ami, and otherdeleterious methods of shin!. and to prosecute other methods of shin!. and toprosecute any 5iolation of the pro5isions of applica-le shin! laws'674inally, itimposes upon the sangguniang bayan, the sangguniang panlungsod, andthe sangguniang panlalawiganthe duty to enact ordinances to 6p7rotect theen5ironment and impose appropriate penalties for acts which endan!er theen5ironment such as dynamite shin! and other forms of destructi5e shin! and
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such other acti5ities which result in pollution, acceleration of eutrophication of ri5ersand la8es or of ecolo!ical im-alance'6J7

In closin!, we commend the Sangguniang Panlungsod of the City of PuertoPrincesa and Sangguniang Panlalawigan of the Pro5ince of Palawan for eercisin!the reDuisite political will to enact ur!ently needed le!islation to protect andenhance the marine en5ironment, there-y sharin! in the herculean tas8 of arrestin!

the tide of ecolo!ical destruction' We hope that other local !o5ernment units shallnow -e roused from their lethar!y and adopt a more 5i!ilant stand in the -attlea!ainst the decimation of our le!acy to future !enerations' At this time, therepercussions of any further delay in their response may pro5e disastrous, if not,irre5ersi-le'

"#EREFORE, the instant petition is I1MI11E for lac8 of merit and thetemporary restrainin! order issued on %% No5em-er %**0 is 3I4TE'

No pronouncement as to costs'SO ORDERED.#arvasa, C.$., Padilla, %itug, Panganiban, and&orres, $r., $$', concur'Romero, 'elo, Puno, andFrancisco, $$.,joined the ponencias of 2ustices a5ide

and MendoGa'

(ellosillo, $.,see dissentin! opinion')apunan and *ermosisima, $r',$$', join 2ustice Bellosillo in his dissentin! opinion''endo+a, see concurrin! opinion'Regalado, $., on o/cial lea5e'

EN BANC[G.R. No. 11$127. A%&'( 12, 200)]

CIT* OF +ANILA, ,petitioners, vs.#ON. PERFECTO A.S. LAGIO, R., -sP&s'/'g u/g, RTC, +-'(- -/ +ALATE TORIST DEVELOP+ENTCORPORATION, respondents.

D E C I S I O NTINGA,J.!I 8now only that what is moral is what you feel !ood after and what is immoral iswhat you feel -ad after'

E&st #&'g-3D-t ' t A5t&oo, C. 1

It is a moral and political aiom that any dishonora-le act, if performed -y oneself,is less immoral than if performed -y someone else, who would -e well)intentionedin his dishonesty'

. C&'sto%& G&-(/6o-%-&t ' Eg3%t, C. I

The Courts commitment to the protection of morals is secondary to its fealty tothe fundamental law of the land' It is foremost a !uardian of the Constitution -utnot the conscience of indi5iduals' And if it need -e, the Court will not hesitate toma8e the hammer fall, and hea5ily in the words of 2ustice 3aurel, and uphold theconstitutional !uarantees when faced with laws that, thou!h not lac8in! in Geal topromote morality, ne5ertheless fail to pass the test of constitutionality'

The pi5otal issue in this Petition6%7under ule ( $then ule +& of the e5isedules on Ci5il Procedure see8in! the re5ersal of the ecision6+7in Ci5il Case No' *0)(%% of the e!ional Trial Court $TC& of Manila, Branch %? $lower court&, 607is the5alidity of "rdinance No' JJ?0 $the -rdinance& of the City of Manila'67
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The antecedents are as follows#Pri5ate respondent Malate Tourist e5elopment Corporation $MTC& is a

corporation en!a!ed in the -usiness of operatin! hotels, motels, hostels andlod!in! houses'6(7It -uilt and opened


17/113

+-(-t -&- o& o;&t s-'/ us'sss to ot& '/s o5 us'ss-((o-( 't' t -&-,such as -ut not limited to#

%' Curio or antiDue shop+' 1ou5enir 1hops0' ;andicrafts display centers' Art !alleries

(' ecords and music shops' estaurantsJ' Co9ee shops?' 4lower shops*' Music loun!e and sin!)alon! restaurants, with well)dened

acti5ities for wholesome family entertainment that cater to -oth local andforei!n clientele'

%H' Theaters en!a!ed in the ehi-ition, not only of motionpictures -ut also of cultural shows, sta!e and theatrical plays, artehi-itions, concerts and the li8e'

%%' Businesses allowa-le within the law and medium intensitydistricts as pro5ided for in the Gonin! ordinances for Metropolitan Manila,

ecept new warehouse or open)stora!e depot, doc8 or yard, motor repairshop, !asoline ser5ice station, li!ht industry with any machinery, orfuneral esta-lishments'

1EC' ' A3 %&so ;'o(-t'g -3 %&o;'s'os o5 t's o&/'-, s-(( u%oo;'t'o, %u's/ 3 '%&'sot o5 o >1@ 3-& o& B o5 FIVET#OSAND >P),000.00@ PESOS, o& ot, at the discretion of the Court,P"


18/113

$(& The -rdinance5iolates MTCs constitutional ri!hts in that# $a& it is conscatoryand constitutes an in5asion of plainti9s property ri!hts. $-& the City Council has nopower to nd as a fact that a particular thin! is a nuisanceper senor does it ha5ethe power to etrajudicially destroy it. and $& The-rdinanceconstitutes a denial ofeDual protection under the law as no reasona-le -asis eists for prohi-itin! theoperation of motels and inns, -ut not pension houses, hotels, lod!in! houses or

other similar esta-lishments, and for prohi-itin! said -usiness in the Ermita)Malatearea -ut not outside of this area'6%7

In their4nswer6%(7dated +0 2uly %**0, petitioners City of Manila and 3immaintained that the City Council had the power to prohi-it certain forms ofentertainment in order to protect the social and moral welfare of the community aspro5ided for in 1ection (? $a& $5ii& of the 3ocal :o5ernment Code,6%7which reads,thus#1ection (?' Powers, uties, 4unctions and Compensation' $a& The san!!unian!panlun!sod, as the le!islati5e -ody of the city, shall enact ordinances, appro5eresolutions and appropriate funds for the !eneral welfare of the city and itsinha-itants pursuant to 1ection % of this Code and in the proper eercise of thecorporate powers of the city as pro5ided for under 1ection ++ of this Code, and

shall#' ' ' '$& e!ulate acti5ities relati5e to the use of land, -uildin!s and structures within thecity in order to promote the !eneral welfare and for said purpose shall#' ' ' '

$5ii& e!ulate the esta-lishment, operation, and maintenance of anyentertainment or amusement facilities, includin! theatrical performances,circuses, -illiard pools, pu-lic dancin! schools, pu-lic dance halls, sauna-aths, massa!e parlors, and other places for entertainment or amusement.re!ulate such other e5ents or acti5ities for amusement or entertainment,particularly those which tend to distur- the community or annoy theinha-itants, or reDuire the suspension or suppression of the same. or,

prohi-it certain forms of amusement or entertainment in order to protectthe social and moral welfare of the community'

Citin! )wong Sing v. City o 'anila,6%J7petitioners insisted that the power ofre!ulation spo8en of in the a-o5e)Duoted pro5ision included the power to control, to!o5ern and to restrain places of ehi-ition and amusement' 6%?7

Petitioners li8ewise asserted that the -rdinancewas enacted -y the City Councilof Manila to protect the social and moral welfare of the community in conjunctionwith its police power as found in Article III, 1ection %?$88& of epu-lic Act No' H*,6%*7otherwise 8nown as the e5ised Charter of the City of Manila $e5ised Charter ofManila&6+H7which reads, thus#

ATIC3E IIIT;E M=NICIPA3 B"A

' ' '1ection %?' 3e!islati5e powers' The Municipal Board shall ha5e the followin!le!islati5e powers#

' ' '$88& To enact all ordinances it may deem necessary and proper for thesanitation and safety, the furtherance of the prosperity, and the promotionof the morality, peace, !ood order, comfort, con5enience, and !eneralwelfare of the city and its inha-itants, and such others as may -e necessary
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to carry into e9ect and dischar!e the powers and duties conferred -y thischapter. and to penalties for the 5iolation of ordinances which shall noteceed two hundred pesos ne or si months imprisonment, or -oth suchne and imprisonment, for a sin!le o9ense'

4urther, the petitioners noted, the -rdinancehad the presumption of 5alidity.hence, pri5ate respondent had the -urden to pro5e its ille!ality or

unconstitutionality'6+%7

Petitioners also maintained that there was no inconsistency -etween P'' **and the -rdinanceas the latter simply disauthoriGed certain forms of -usinessesand allowed the Ermita)Malate area to remain a commercial Gone'6++7The -rdinance,the petitioners li8ewise claimed, cannot -e assailed as e3 post actoas it wasprospecti5e in operation'6+07The -rdinancealso did not infrin!e the eDual protectionclause and cannot -e denounced as class le!islation as there eisted su-stantialand real di9erences -etween the Ermita)Malate area and other places in the City ofManila'6+7

"n +? 2une %**0, respondent 2ud!e Perfecto A'1' 3a!uio, 2r' $2ud!e 3a!uio&issued an e)parte temporary restrainin! order a!ainst the enforcement ofthe -rdinance'6+(7And on % 2uly %**0, a!ain in an intrepid !esture, he !ranted the

writ of preliminary injunction prayed for -y MTC'6+7

After trial, on +( No5em-er %**, 2ud!e 3a!uio rendered the assailed ecision,enjoinin! the petitioners from implementin! the -rdinance' The dispositi5e portionof said ecisionreads#6+J7

W;EE4"E, jud!ment is here-y rendered declarin! "rdinance No' JJ?607, 1eriesof %**0, of the City of Manila null and 5oid, and ma8in! permanent the writ ofpreliminary injunction that had -een issued -y this Court a!ainst the defendant' Nocosts'1" "EE'6+?7

Petitioners led with the lower court a #otice o 4ppeal6+*7on %+ ecem-er%**, manifestin! that they are ele5atin! the case to this Court under then ule +on pure Duestions of law'60H7

"n %% 2anuary %**(, petitioners led the present Petition, alle!in! that thefollowin! errors were committed -y the lower court in its rulin!# $%& It erred inconcludin! that the su-ject ordinance is ultra vires, or otherwise, unfair,unreasona-le and oppressi5e eercise of police power. $+& It erred in holdin! thatthe Duestioned -rdinancecontra5enes P'' **60%7which allows operators of all8inds of commercial esta-lishments, ecept those specied therein. and $0& It erredin declarin! the -rdinance5oid and unconstitutional'60+7

In the Petitionand in its 'emorandum,6007petitioners in essence repeat theassertions they made -efore the lower court' They contend that theassailed -rdinancewas enacted in the eercise of the inherent and plenary powerof the 1tate and the !eneral welfare clause eercised -y local !o5ernment unitspro5ided for in Art' 0, 1ec' %? $88& of the e5ised Charter of Manila andconjuncti5ely, 1ection (? $a& $5ii& of the Code'607They alle!e thatthe -rdinanceis a 5alid eercise of police power. it does not contra5ene P'' **.and that it enjoys the presumption of 5alidity' 60(7

In its 'emorandum607dated +J May %**, pri5ate respondent maintains thatthe -rdinanceis ultra viresand that it is 5oid for -ein! repu!nant to the !enerallaw' It reiterates that the Duestioned -rdinance is not a 5alid eercise of policepower. that it is 5iolati5e of due process, conscatory and amounts to an ar-itraryinterference with its lawful -usiness. that it is 5iolati5e of the eDual protection
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clause. and that it confers on petitioner City Mayor or any o/cer unre!ulateddiscretion in the eecution of the -rdinancea-sent rules to !uide and control hisactions'

This is an opportune time to epress the Courts deep sentiment and tendernessfor the Ermita)Malate area -ein! its home for se5eral decades' A lon!)time resident,the Court witnessed the areas many turn of e5ents' It relished its !lory days and

endured its days of infamy' Much as the Court har8s -ac8 to the resplendent era ofthe "ld Manila and yearns to restore its lost !randeur, it -elie5es thatthe -rdinanceis not the ttin! means to that end' The Court is of the opinion, andso holds, that the lower court did not err in declarin! the-rdinance, as it did, ultraviresand therefore null and 5oid'

The -rdinanceis so replete with constitutional inrmities that almost e5erysentence thereof 5iolates a constitutional pro5ision' The prohi-itions and sanctionstherein trans!ress the cardinal ri!hts of persons enshrined -y the Constitution' TheCourt is called upon to shelter these ri!hts from attempts at renderin! themworthless'

The tests of a 5alid ordinance are well esta-lished' A lon! line of decisions hasheld that for an ordinance to -e 5alid, it must not only -e within the corporate

powers of the local !o5ernment unit to enact and must -e passed accordin! to theprocedure prescri-ed -y law, it must also conform to the followin! su-stanti5ereDuirements# $%& must not contra5ene the Constitution or any statute. $+& must not-e unfair or oppressi5e. $0& must not -e partial or discriminatory. $& must notprohi-it -ut may re!ulate trade. $(& must -e !eneral and consistent with pu-licpolicy. and $& must not -e unreasona-le'60J7

Anent the rst criterion, ordinances shall only -e 5alid when they are notcontrary to the Constitution and to the laws'60?7The -rdinancemust satisfy tworeDuirements# it must pass muster under the test of constitutionality and the test ofconsistency with the pre5ailin! laws' That ordinances should -e constitutionaluphold the principle of the supremacy of the Constitution' The reDuirement that theenactment must not 5iolate eistin! law !i5es stress to the precept that local

!o5ernment units are a-le to le!islate only -y 5irtue of their deri5ati5e le!islati5epower, a dele!ation of le!islati5e power from the national le!islature' The dele!atecannot -e superior to the principal or eercise powers hi!her than those of thelatter'60*7

This relationship -etween the national le!islature and the local !o5ernmentunits has not -een enfee-led -y the new pro5isions in the Constitutionstren!thenin! the policy of local autonomy' The national le!islature is still theprincipal of the local !o5ernment units, which cannot defy its will or modify or5iolate it'6H7

The -rdinancewas passed -y the City Council in the eercise of its policepower, an enactment of the City Council actin! as a!ent of Con!ress' 3ocal!o5ernment units, as a!encies of the 1tate, are endowed with police power in orderto e9ecti5ely accomplish and carry out the declared o-jects of their creation' 6%7Thisdele!ated police power is found in 1ection % of the Code, 8nown as the !eneralwelfare clause, vi+#1ECTI"N %' eneral !elare'E5ery local !o5ernment unit shall eercise the powersepressly !ranted, those necessarily implied therefrom, as well as powersnecessary, appropriate, or incidental for its e/cient and e9ecti5e !o5ernance, andthose which are essential to the promotion of the !eneral welfare' Within theirrespecti5e territorial jurisdictions, local !o5ernment units shall ensure and support,
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amon! other thin!s, the preser5ation and enrichment of culture, promote healthand safety, enhance the ri!ht of the people to a -alanced ecolo!y, encoura!e andsupport the de5elopment of appropriate and self)reliant scientic and technolo!icalcapa-ilities, impro5e pu-lic morals, enhance economic prosperity and social justice,promote full employment amon! their residents, maintain peace and order, andpreser5e the comfort and con5enience of their inha-itants'

3ocal !o5ernment units eercise police power throu!h their respecti5ele!islati5e -odies. in this case, the sangguniang panlungsodor the city council' TheCode empowers the le!islati5e -odies to enact ordinances, appro5e resolutions andappropriate funds for the !eneral welfare of the pro5incecitymunicipality and itsinha-itants pursuant to 1ection % of the Code and in the proper eercise of thecorporate powers of the pro5incecity municipality pro5ided under the Code' 6+7TheinDuiry in this Petition is concerned with the 5alidity of the eercise of suchdele!ated power'&he -rdinance contravenesthe Constitution

The police power of the City Council, howe5er -road and far)reachin!, issu-ordinate to the constitutional limitations thereon. and is su-ject to the limitation

that its eercise must -e reasona-le and for the pu-lic !ood' 607In the case at -ar,the enactment of the -rdinancewas an in5alid eercise of dele!ated power as it isunconstitutional and repu!nant to !eneral laws'

The rele5ant constitutional pro5isions are the followin!#1EC' (' The maintenance of peace and order, the protection of life, li-erty, andproperty, and the promotion of the !eneral welfare are essential for the enjoyment-y all the people of the -lessin!s of democracy' 67

1EC' %' The 1tate reco!niGes the role of women in nation)-uildin!, and shall ensurethe fundamental eDuality -efore the law of women and men'6(7

1EC' %' No person shall -e depri5ed of life, li-erty or property without due processof law, nor shall any person -e denied the eDual protection of laws'67

1ec' *' Pri5ate property shall not -e ta8en for pu-lic use without just compensation'6J7

A' The -rdinanceinfrin!esthe ue Process Clause

The constitutional safe!uard of due process is em-odied in the at $N&o personshall -e depri5ed of life, li-erty or property without due process of law' ' ' ' 6?7

There is no controllin! and precise denition of due process' It furnishes thou!ha standard to which !o5ernmental action should conform in order that depri5ationof life, li-erty or property, in each appropriate case, -e 5alid' This standard is aptlydescri-ed as a responsi5eness to the supremacy of reason, o-edience to thedictates of justice,6*7and as such it is a limitation upon the eercise of the policepower'6(H7

The purpose of the !uaranty is to pre5ent !o5ernmental encroachment a!ainstthe life, li-erty and property of indi5iduals. to secure the indi5idual from thear-itrary eercise of the powers of the !o5ernment, unrestrained -y the esta-lishedprinciples of pri5ate ri!hts and distri-uti5e justice. to protect property fromconscation -y le!islati5e enactments, from seiGure, forfeiture, and destructionwithout a trial and con5iction -y the ordinary mode of judicial procedure. and tosecure to all persons eDual and impartial justice and the -enet of the !eneral law'6(%7
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The !uaranty ser5es as a protection a!ainst ar-itrary re!ulation, and pri5atecorporations and partnerships are persons within the scope of the !uaranty insofaras their property is concerned'6(+7

This clause has -een interpreted as imposin! two separate limits on!o5ernment, usually called procedural due process and su-stanti5e due process'

Procedural due process, as the phrase implies, refers to the procedures that the

!o5ernment must follow -efore it depri5es a person of life, li-erty, or property'Classic procedural due process issues are concerned with what 8ind of notice andwhat form of hearin! the !o5ernment must pro5ide when it ta8es a particularaction'6(07

1u-stanti5e due process, as that phrase connotes, as8s whether the!o5ernment has an adeDuate reason for ta8in! away a persons life, li-erty, orproperty' In other words, su-stanti5e due process loo8s to whether there is asu/cient justication for the !o5ernments action' 6(7Case law in the =nited 1tates$='1'& tells us that whether there is such a justication depends 5ery much on thele5el of scrutiny used'6((74or eample, if a law is in an area where only rational -asisre5iew is applied, su-stanti5e due process is met so lon! as the law is rationallyrelated to a le!itimate !o5ernment purpose' But if it is an area where strict scrutiny

is used, such as for protectin! fundamental ri!hts, then the !o5ernment will meetsu-stanti5e due process only if it can pro5e that the law is necessary to achie5e acompellin! !o5ernment purpose'6(7

The police power !ranted to local !o5ernment units must always -e eercisedwith utmost o-ser5ance of the ri!hts of the people to due process and eDualprotection of the law' 1uch power cannot -e eercised whimsically, ar-itrarily ordespotically6(J7as its eercise is su-ject to a Dualication, limitation or restrictiondemanded -y the respect and re!ard due to the prescription of the fundamentallaw, particularly those formin! part of the Bill of i!hts' Indi5idual ri!hts, it -earsemphasis, may -e ad5ersely a9ected only to the etent that may fairly -e reDuired-y the le!itimate demands of pu-lic interest or pu-lic welfare'6(?7ue processreDuires the intrinsic 5alidity of the law in interferin! with the ri!hts of the person to

his life, li-erty and property'6(*7

Requisites or the valid e3erciseo Police Power are not met

To successfully in5o8e the eercise of police power as the rationale for theenactment of the -rdinance,and to free it from the imputation of constitutionalinrmity, not only must it appear that the interests of the pu-lic !enerally, asdistin!uished from those of a particular class, reDuire an interference with pri5ateri!hts, -ut the means adopted must -e reasona-ly necessary for theaccomplishment of the purpose and not unduly oppressi5e upon indi5iduals'6H7Itmust -e e5ident that no other alternati5e for the accomplishment of the purposeless intrusi5e of pri5ate ri!hts can wor8' A reasona-le relation must eist -etweenthe purposes of the police measure and the means employed for itsaccomplishment, for e5en under the !uise of protectin! the pu-lic interest, personalri!hts and those pertainin! to pri5ate property will not -e permitted to -e ar-itrarilyin5aded'6%7

3ac8in! a concurrence of these two reDuisites, the police measure shall -estruc8 down as an ar-itrary intrusion into pri5ate ri!hts6+7a 5iolation of the dueprocess clause'

The -rdinancewas enacted to address and arrest the social ills purportedlyspawned -y the esta-lishments in the Ermita)Malate area which are alle!edly
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operated under the decepti5e 5eneer of le!itimate, licensed and ta)payin!ni!htclu-s, -ars, 8arao8e -ars, !irlie houses, coc8tail loun!es, hotels and motels'Petitioners insist that e5en the Court in the case of 5rmita"'alate *otel and 'otel-perators 4ssociation, nc. v. City 'ayor o 'anila607had already ta8en judicialnotice of the alarmin! increase in the rate of prostitution, adultery and fornication inManila tracea-le in !reat part to eistence of motels, which pro5ide a necessary

atmosphere for clandestine entry, presence and eit and thus -ecome the idealha5en for prostitutes and thrill)see8ers'67

The o-ject of the -rdinancewas, accordin!ly, the promotion and protection ofthe social and moral 5alues of the community' :rantin! for the sa8e of ar!umentthat the o-jecti5es of the-rdinanceare within the scope of the City Councils policepowers, the means employed for the accomplishment thereof were unreasona-leand unduly oppressi5e'

It is undou-tedly one of the fundamental duties of the City of Manila to ma8e allreasona-le re!ulations loo8in! to the promotion of the moral and social 5alues ofthe community' ;owe5er, the worthy aim of fosterin! pu-lic morals and theeradication of the communitys social ills can -e achie5ed throu!h means lessrestricti5e of pri5ate ri!hts. it can -e attained -y reasona-le restrictions rather than

-y an a-solute prohi-ition' The closin! down and transfer of -usinesses or theircon5ersion into -usinesses allowed under the -rdinanceha5e no reasona-lerelation to the accomplishment of its purposes' "therwise stated, the prohi-ition ofthe enumerated esta-lishments will notper seprotect and promote the social andmoral welfare of the community. it will not in itself eradicate the alluded social ills ofprostitution, adultery, fornication nor will it arrest the spread of seual disease inManila'

Concedin! for the nonce that the Ermita)Malate area teems with houses of ill)repute and esta-lishments of the li8e which the City Council may lawfully prohi-it,6(7it is -aseless and insupporta-le to -rin! within that classication sauna parlors,massa!e parlors, 8arao8e -ars, ni!ht clu-s, day clu-s, super clu-s, discotheDues,ca-arets, dance halls, motels and inns' This is not warranted under the accepted

denitions of these terms' The enumerated esta-lishments are lawful pursuits whichare notper seo9ensi5e to the moral welfare of the community'

That these are used as arenas to consummate illicit seual a9airs and as 5enuesto further the ille!al prostitution is of no moment' We lay stress on the acrid truththat seual immorality, -ein! a human frailty, may ta8e place in the most innocentof places that it may e5en ta8e place in the su-stitute esta-lishments enumeratedunder 1ection 0 of the -rdinance' If the awed lo!ic of the -rdinancewere to -efollowed, in the remote instance that an immoral seual act transpires in a churchcloister or a court cham-er, we would -ehold the spectacle of the City of Manilaorderin! the closure of the church or court concerned' E5ery house, -uildin!, par8,cur-, street or e5en 5ehicles for that matter will not -e eempt from the prohi-ition'1imply -ecause there are no pure places where there are impure men' Indeed, e5enthe 1cripture and the Tradition of Christians churches continually recall the presenceand universality o sin in mans history.67

The pro-lem, it needs to -e pointed out, is not the esta-lishment, which -y itsnature cannot -e said to -e injurious to the health or comfort of the community andwhich in itself is amoral, -ut the deplora-le human acti5ity that may occur within itspremises' While a motel may -e used as a 5enue for immoral seual acti5ity, itcannot for that reason alone -e punished' It cannot -e classied as a house of ill)repute or as a nuisanceper seon a mere li8elihood or a na8ed assumption' If that
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were so and if that were allowed, then the Ermita)Malate area would not only -epur!ed of its supposed social ills, it would -e etin!uished of its soul as well ase5ery human acti5ity, reprehensi-le or not, in its e5ery noo8 and cranny would -elaid -are to the estimation of the authorities'

The -rdinancesee8s to le!islate morality -ut fails to address the core issues ofmorality' Try as the -rdinancemay to shape morality, it should not foster the illusion

that it can ma8e a moral man out of it -ecause immorality is not a thin!, a -uildin!or esta-lishment. it is in the hearts of men' The City Council instead should re!ulatehuman conduct that occurs inside the esta-lishments, -ut not to the detriment ofli-erty and pri5acy which are co5enants, premiums and -lessin!s of democracy'

While petitioners earnestness at cur-in! clearly o-jectiona-le social ills iscommenda-le, they unwittin!ly punish e5en the proprietors and operators ofwholesome, innocent esta-lishments' In the instant case, there is a clear in5asion ofpersonal or property ri!hts, personal in the case of those indi5iduals desirous ofownin!, operatin! and patroniGin! those motels and property in terms of thein5estments made and the salaries to -e paid to those therein employed' If the Cityof Manila so desires to put an end to prostitution, fornication and other social ills, itcan instead impose reasona-le re!ulations such as daily inspections of the

esta-lishments for any 5iolation of the conditions of their licenses or permits. it mayeercise its authority to suspend or re5o8e their licenses for these 5iolations.6J7andit may e5en impose increased license fees' In other words, there are other means toreasona-ly accomplish the desired end''eans employed areconstitutionally infrm

The -rdinancedisallows the operation of sauna parlors, massa!e parlors,8arao8e -ars, -eerhouses, ni!ht clu-s, day clu-s, super clu-s, discotheDues,ca-arets, dance halls, motels and inns in the Ermita)Malate area' In 1ection 0thereof, owners andor operators of the enumerated esta-lishments are !i5en three$0& months from the date of appro5al of the -rdinancewithin which to wind up-usiness operations or to transfer to any place outside the Ermita)Malate area or

con5ert said -usinesses to other 8inds of -usiness allowa-le within the area'4urther, it states in 1ection that in cases of su-seDuent 5iolations of the pro5isionsof the "rdinance, the premises of the errin! esta-lishment shall -e closed andpadloc8ed permanently'

It is readily apparent that the means employed -y the -rdinancefor theachie5ement of its purposes, the !o5ernmental interference itself, infrin!es on theconstitutional !uarantees of a persons fundamental ri!ht to li-erty and property'

3i-erty as !uaranteed -y the Constitution was dened -y 2ustice Malcolm toinclude the ri!ht to eist and the ri!ht to -e free from ar-itrary restraint orser5itude' The term cannot -e dwarfed into mere freedom from physical restraint ofthe person of the citiGen, -ut is deemed to em-race the ri!ht of man to enjoy thefacilities with which he has -een endowed -y his Creator, su-ject only to suchrestraint as are necessary for the common welfare'6?7In accordance with this case,the ri!hts of the citiGen to -e free to use his faculties in all lawful ways. to li5e andwor8 where he will. to earn his li5elihood -y any lawful callin!. and to pursue anya5ocation are all deemed em-raced in the concept of li-erty' 6*7

The ='1' 1upreme Court in the case of Roth v. (oard o Regents,6JH7sou!ht toclarify the meanin! of li-erty' It said#While the Court has not attempted to dene with eactness the li-erty' ' '!uaranteed 6-y the 4ifth and 4ourteenth Amendments7, the term denotes not
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merely freedom from -odily restraint -ut also the ri!ht of the indi5idual to contract,to en!a!e in any of the common occupations of life, to acDuire useful 8nowled!e, tomarry, esta-lish a home and -rin! up children, to worship :od accordin! to thedictates of his own conscience, and !enerally to enjoy those pri5ile!es lon!reco!niGedas essential to the orderly pursuit of happiness -y free men' In aConstitution for a free people, there can -e no dou-t that the meanin! of li-erty

must -e -road indeed'In another case, it also conrmed that li-erty protected -y the due process

clause includes personal decisions relatin! to marria!e, procreation, contraception,family relationships, child rearin!, and education' In eplainin! the respect theConstitution demands for the autonomy of the person in ma8in! these choices, the='1' 1upreme Court eplained#

These matters, in5ol5in! the most intimate and personal choices a person mayma8e in a lifetime, choices central to personal di!nity and autonomy, are central tothe li-erty protected -y the 4ourteenth Amendment' At the heart of li-erty is theri!ht to dene ones own concept of eistence, of meanin!, of uni5erse, and of themystery of human life' Beliefs a-out these matters could not dene the attri-utes ofpersonhood where they formed under compulsion of the 1tate' 6J%7

Persons desirous to own, operate and patroniGe the enumerated esta-lishmentsunder 1ection % of the -rdinancemay see8 autonomy for these purposes'

Motel patrons who are sin!le and unmarried may in5o8e this ri!ht to autonomyto consummate their -onds in intimate seual conduct within the motelspremises-e it stressed that their consensual seual -eha5ior does not contra5eneany fundamental state policy as contained in the Constitution'6J+7Adults ha5e a ri!htto choose to for!e such relationships with others in the connes of their own pri5ateli5es and still retain their di!nity as free persons' The li-erty protected -y theConstitution allows persons the ri!ht to ma8e this choice'6J07Their ri!ht to li-ertyunder the due process clause !i5es them the full ri!ht to en!a!e in their conductwithout inter5ention of the !o5ernment, as lon! as they do not run afoul of the law'3i-erty should -e the rule and restraint the eception'

3i-erty in the constitutional sense not only means freedom from unlawful!o5ernment restraint. it must include pri5acy as well, if it is to -e a repository offreedom' The ri!ht to -e let alone is the -e!innin! of all freedomit is the mostcomprehensi5e of ri!hts and the ri!ht most 5alued -y ci5iliGed men'6J7

The concept of li-erty compels respect for the indi5idual whose claim to pri5acyand interference demands respect' As the case of 'ore v. 'utuc,6J(7-orrowin! thewords of 3as8i, so 5ery aptly stated#Man is one amon! many, o-stinately refusin! reduction to unity' ;is separateness,his isolation, are indefeasi-le. indeed, they are so fundamental that they are the-asis on which his ci5ic o-li!ations are -uilt' ;e cannot a-andon the conseDuencesof his isolation, which are, -roadly spea8in!, that his eperience is pri5ate, and thewill -uilt out of that eperience personal to himself' If he surrenders his will toothers, he surrenders himself' If his will is set -y the will of others, he ceases to -e amaster of himself' I cannot -elie5e that a man no lon!er a master of himself is inany real sense free'

Indeed, the ri!ht to pri5acy as a constitutional ri!ht was reco!niGed in 'ore,the in5asion of which should -e justied -y a compellin! stateinterest' 'oreaccorded reco!nition to the ri!ht to pri5acy independently of itsidentication with li-erty. in itself it is fully deser5in! of constitutional protection'
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:o5ernmental powers should stop short of certain intrusions into the personal life ofthe citiGen'6J7

There is a !reat temptation to ha5e an etended discussion on these ci5illi-erties -ut the Court chooses to eercise restraint and restrict itself to the issuespresented when it should' The pre5ious pronouncements of the Court are not to -einterpreted as a license for adults to en!a!e in criminal conduct' The

reprehensi-ility of such conduct is not diminished' The Court only rea/rms and!uarantees their ri!ht to ma8e this choice' 1hould they -e prosecuted for theirille!al conduct, they should su9er the conseDuences of the choice they ha5e made'

That, ultimately, is their choice''odality employed isunlawul ta6ingIn addition, the -rdinanceis unreasona-le and oppressi5e as it su-stantially

di5ests the respondent of the -enecial use of its property'6JJ7The -rdinancein1ection % thereof for-ids the runnin! of the enumerated -usinesses in the Ermita)Malate area and in 1ection 0 instructs its ownersoperators to wind up -usinessoperations or to transfer outside the area or con5ert said -usinesses into allowed-usinesses' An ordinance which permanently restricts the use of property that it can

not -e used for any reasona-le purpose !oes -eyond re!ulation and must -ereco!niGed as a ta8in! of the property without just compensation' 6J?7It is intrusi5eand 5iolati5e of the pri5ate property ri!hts of indi5iduals'

The Constitution epressly pro5ides in Article III, 1ection *, that pri5ate propertyshall not -e ta8en for pu-lic use without just compensation' The pro5ision is themost important protection of property ri!hts in the Constitution' This is a restrictionon the !eneral power of the !o5ernment to ta8e property' The constitutionalpro5ision is a-out ensurin! that the !o5ernment does not conscate the property ofsome to !i5e it to others' In part too, it is a-out loss spreadin!' If the !o5ernmentta8es away a persons property to -enet society, then society should pay' Theprincipal purpose of the !uarantee is to -ar the :o5ernment from forcin! somepeople alone to -ear pu-lic -urdens which, in all fairness and justice, should -e

-orne -y the pu-lic as a whole'6J*7

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