Documente Academic
Documente Profesional
Documente Cultură
THIRD DIVISION
[G.R. No. 129098. December 6, 2006.]
DECISION
TINGA, J p:
The instant petition for review on certiorari seeks the reversal of the
Resolution 1 dated 13 May 1996 and the Order 2 dated 21 March 1997,
both issued by the Office of the Ombudsman. The Resolution dismissed
the complaint-affidavit filed by petitioner against respondents and the
Order denied her motion for reconsideration.
The instant petition originated from a Complaint-Affidavit 3 filed in
November 1995 by petitioner Amelia M. Cabrera with the Office of the
Ombudsman ("Ombudsman"). Named respondents were Manuel Lapid,
Fernando Baltazar, Reynaldo F. Cabrera and Superintendent Diony
Ventura, respectively, in their capacities as Governor of Pampanga, Mayor
of Sasmuan, Pampanga, Vice-Mayor of Sasmuan, Pampanga and
Superintendent of the Philippine National Police (PNP)-Region 3,
Pampanga. In her three(3)-page affidavit, petitioner accused respondents
of violating Section 3(e) of the Anti-Graft and Corrupt Practices Act and
Article 324 of the Revised Penal Code.
In her Complaint-Affidavit, petitioner stated that she entered into a lease
agreement with the Municipality of Sasmuan over a tract of land for the
purpose of devoting it to fishpond operations. According to petitioner, she
had spent approximately P5,000,000.00 for its construction before the
fishpond operations commenced in August 1995. A month later, petitioner
learned from newspaper reports of the impending demolition of her
fishpond as it was purportedly illegal and blocked the flow of the Pasak
River. Thus, petitioner sent the fishpond administrator to dissuade
respondents from destroying her property. 4
Despite pleas from petitioner, respondents ordered the destruction of
petitioner's fishpond. The property was demolished on 10 October 1995 by
dynamite blasting. Petitioner alleged that the demolition was purposely
carried out in the presence of media representatives and other government
officials to gain media mileage. Petitioner imputed evident bad faith on
respondents Mayor Baltazar and Vice-Mayor Cabrera in allowing the
destruction of the fishpond despite their prior knowledge of the existence
of the lease agreement. She also charged respondents Governor Lapid and
Senior Superintendent Ventura with gross inexcusable negligence for
ordering the destruction of the fishpond without first verifying its
legality. 5
At the preliminary investigation, respondents, except Senior
Superintendent Ventura, submitted counter-affidavits, denying the
accusations against them. In the counter-affidavit jointly filed by Mayor
Baltazar and Vice-Mayor Cabrera, they insisted that contrary to
petitioner's claim, the fishpond was an illegal structure because it was
erected on the seashore, at the mouth of the Pasak River, and sat on an
inalienable land. They claimed that the demolition was done by the Task
Force Bilis Daloy upon the directive of then President Fidel V. Ramos. 6
In his Counter-Affidavit, 7 Governor Lapid averred that the contract of
lease between petitioner and the Municipality of Sasmuan, represented by
then Mayor Abelardo Panlaqui, was executed two weeks before
respondent Mayor Baltazar took his oath of office in 1995. Governor
Lapid also argued that under the law, the Department of Agriculture (DA)
is the government agency authorized to enter into licensing agreements for
fishpond operations, and as per certification by the DA Regional Director,
petitioner's fishpond operation was not covered by a fishpond lease
agreement or application. Governor Lapid also referred to the certification
by the Municipal Health Officer of Sasmuan issued before the actual
demolition of the fishpond, describing it as a nuisance per se and
recommending its abatement. 8
On 13 May 1996, the Ombudsman issued the assailed Resolution,
dismissing petitioner's complaint. The dismissal was based on the
declaration that the fishpond was a nuisance per seand, thus, may be
abated by respondents in the exercise of the police power of the State. 9
Petitioner sought reconsideration of the Resolution, arguing that under
Sec. 149 of Republic Act (R.A.) No. 7160, otherwise known as the Local
Government Code of 1991, the exclusive authority to grant fishery
privileges is vested in the municipalities. Petitioner also questioned the
certification by the Municipal Health Officer, alleging that the same was
issued before the ocular inspection of the property which took place only
on the day of the demolition. Petitioner also contended that a judicial
proceeding was necessary to determine whether the property indeed had
caused the flooding. 10 Respondents filed separate oppositions to
petitioner's motion for reconsideration. 11 Petitioner filed a reply to the
opposition 12 and respondent Governor Lapid filed a rejoinder to the
reply. 13
In the Order dated 21 March 1997, the Ombudsman affirmed its 13 May
1996 Resolution. It ruled that the repealing clause of R.A. No.
7160 expressly repealed only Sec. 2, 6 and 29 of Presidential Decree
(P.D.) No. 704 so that in harmonizing the remaining provisions of P.D. No.
704 and the provisions of R.A. No. 7160 applicable to the grant of fishery
privileges, the Bureau of Fisheries and Aquatic Resources (BFAR) is the
government agency authorized to grant fishpond license or permit in areas
not identified as municipal waters or not declared as alienable or
disposable by the Department of Environment and Natural Resources
(DENR). Since it appears from DENR records that the subject property
has not been declared disposable or included in areas devoted for fishpond
development, the Ombudsman concluded that the lease agreement entered
into by petitioner was void ab initio. In view of the illegality of the lease
agreement, the Ombudsman ruled that its demolition was justified. The
Ombudsman described the demolition as a valid exercise of police power
and in accordance with the provision of Sec. 28 of P.D. No. 704 directing
the removal of any fishpen or fishpond that obstructed the free navigation
of a stream or lake. It also upheld the authority of the district health officer
to determine the abatement of a nuisance without need of judicial
proceedings. 14
Petitioner elevated the matter to this Court via a petition for review
on certiorari under Rule 45 of the Rules of Court to assail the 13 May
1996 Resolution and 21 March 1997 Order of the Ombudsman. Petitioner
subsequently filed an amended petition for review on certiorari to implead
the Ombudsman as respondent, although in a petition for review
on certiorari, the tribunal whose issuance is assailed need not be
impleaded as respondent. acEHSI
The petition imputes the following errors on the Ombudsman:
I.
THE OFFICE OF THE OMBUDSMAN ERRED AND
EXCEEDED ITS AUTHORITY IN RULING THAT
THE LEASE CONTRACT BETWEEN THE
MUNICIPALITY OF SASMUAN AND PETITIONER
IS NULL AND VOID.
II.
THE OFFICE OF THE OMBUDSMAN ERRED IN
RULING THAT THE DEMOLITION OF THE
FISHPOND WAS VALIDLY MADE BY VIRTUE OF
THE DECLARATION BY THE HEALTH OFFICER
THAT IT WAS A NUISANCE PER SE.
III.
THE OFFICE OF THE OMBUDSMAN ERRED IN
RULING THAT THE DEMOLITION IS PART OF THE
PROPER EXERCISE OF THE POLICE POWER OF
THE STATE.
IV.
THE OFFICE OF THE OMBUDSMAN ERRED IN
RULING THAT PETITIONER WAS GIVEN DUE
NOTICE AND HEARING BEFORE THE FISHPOND
WAS BLASTED.
V.
THE OFFICE OF THE OMBUDSMAN ERRED IN
RULING THAT PROBABLE CAUSE DOES NOT
EXIST TO INDICT RESPONDENTS FOR VIOLATION
OF THE SUBJECT OFFENSES. 15
Clearly, this is an appeal from the questioned issuances of the
Ombudsman. However, such direct resort to this Court from a resolution
or order of the Ombudsman is not sanctioned by any rule of procedure.
Neither can petitioner avail of Sec. 27 16 of R.A. No. 6770, otherwise
known as The Ombudsman Act of 1989. The provision allowed direct
appeals in administrative disciplinary cases from the Office of the
Ombudsman to the Supreme Court. The right to appeal is granted only in
respect to orders or decisions of the Ombudsman in administrative
cases. 17 The provision does not cover resolutions of the Ombudsman in
criminal cases. More importantly, Sec. 27 of R.A. No. 6770 insofar as it
allowed a direct appeal to this Court was declared unconstitutional
inFabian v. Hon. Desierto. 18
However, an aggrieved party in criminal actions is not without any
recourse. Where grave abuse of discretion amounting to lack or excess of
jurisdiction taints the findings of the Ombudsman on the existence of
probable cause, the aggrieved party may file a petition for certiorari under
Rule 65. 19 The remedy from resolutions of the Ombudsman in
preliminary investigations of criminal cases is a petition
for certiorari under Rule 65, not a petition for review on certiorari under
Rule 45. 20
But in this case, petitioner has taken the position that the Ombudsman has
decided questions of substance contrary to law and the applicable
decisions of the Supreme Court. That is a ground under a Rule 45 petition.
Indeed, from a reading of the assignment of errors, it is clear that
petitioner does not impute grave abuse of discretion to the Ombudsman in
issuing the assailed Resolution and Order. Rather, she merely questions his
findings and conclusions. As stated earlier, direct appeal to the Supreme
Court via a petition for review on certiorari is not sanctioned by any rule
of procedure. By availing of a wrong remedy, the petition should be
dismissed outright. TAIDHa
Even if the Court treats the instant appeal as a petition for certiorari under
Rule 65, its dismissal is nevertheless warranted because petitioner failed to
present, much more substantiate, any grave abuse of discretion on the part
of the Ombudsman.
A careful reading of the questioned Resolution reveals that the
Ombudsman dismissed petitioner's criminal complaint because
respondents had validly resorted to the police power of the State when
they effected the demolition of the illegal fishpond in question following
the declaration thereof as a nuisance per se. Thus, the Ombudsman was of
the opinion that no violation of Section 3(e) 21 of the Anti-Graft and
Corrupt Practices Act or of Article 324 22 of the Revised Penal Code was
committed by respondents. In the words of the Ombudsman, "those who
participated in the blasting of the subject fishpond were only impelled by
their desire to serve the best interest of the general public; for the good and
the highest good." 23
EN BANC
[G.R. No. 166494. June 29, 2007.]
DECISION
TINGA, J p:
I know only that what is moral is what you feel good after
and what is immoral is what you feel bad after.
Ernest Hemingway
Death in the Afternoon, Ch. 1
It is a moral and political axiom that any dishonorable
act, if performed by oneself, is less immoral than if
performed by someone else, who would be well-
intentioned in his dishonesty.
J. Christopher Gerald
Bonaparte in Egypt, Ch. I
The Court's commitment to the protection of morals is secondary to its
fealty to the fundamental law of the land. It is foremost a guardian of the
Constitution but not the conscience of individuals. And if it need be, the
Court will not hesitate to "make the hammer fall, and heavily" in the
words of Justice Laurel, and uphold the constitutional guarantees when
faced with laws that, though not lacking in zeal to promote morality,
nevertheless fail to pass the test of constitutionality.
The pivotal issue in this Petition 1 under Rule 45 (then Rule 42) of the
Revised Rules on Civil Procedure seeking the reversal of the Decision 2 in
Civil Case No. 93-66511 of the Regional Trial Court (RTC) of Manila,
Branch 18 (lower court), 3 is the validity of Ordinance No. 7783
(the Ordinance) of the City of Manila. 4
The antecedents are as follows:
Private respondent Malate Tourist Development Corporation (MTDC) is a
corporation engaged in the business of operating hotels, motels, hostels
and lodging houses. 5 It built and opened Victoria Court in Malate which
was licensed as a motel although duly accredited with the Department of
Tourism as a hotel. 6 On 28 June 1993, MTDC filed a Petition for
Declaratory Relief with Prayer for a Writ of Preliminary Injunction
and/or Temporary Restraining Order 7 (RTC Petition) with the lower
court impleading as defendants, herein petitioners City of Manila, Hon.
Alfredo S. Lim (Lim), Hon. Joselito L. Atienza, and the members of the
City Council of Manila (City Council). MTDC prayed that the Ordinance,
insofar as it includes motels and inns as among its prohibited
establishments, be declared invalid and unconstitutional. 8
Enacted by the City Council 9 on 9 March 1993 and approved by
petitioner City Mayor on 30 March 1993, the said Ordinance is entitled
AN ORDINANCE PROHIBITING THE
ESTABLISHMENT OR OPERATION OF BUSINESSES
PROVIDING CERTAIN FORMS OF AMUSEMENT,
ENTERTAINMENT, SERVICES AND FACILITIES IN
THE ERMITA-MALATE AREA, PRESCRIBING
PENALTIES FOR VIOLATION THEREOF, AND FOR
OTHER PURPOSES. 10
The Ordinance is reproduced in full, hereunder:
SECTION 1.Any provision of existing laws and
ordinances to the contrary notwithstanding, no person,
partnership, corporation or entity shall, in the Ermita-
Malate area bounded by Teodoro M. Kalaw Sr. Street in
the North, Taft Avenue in the East, Vito Cruz Street in the
South and Roxas Boulevard in the West, pursuant to P.D.
499 be allowed or authorized to contract and engage in,
any business providing certain forms of amusement,
entertainment, services and facilities where women are
used as tools in entertainment and which tend to disturb
the community, annoy the inhabitants, and adversely
affect the social and moral welfare of the community,
such as but not limited to:
1.Sauna Parlors EDSAac
2.Massage Parlors
3.Karaoke Bars
4.Beerhouses
5.Night Clubs
6.Day Clubs
7.Super Clubs
8.Discotheques
9.Cabarets
10.Dance Halls
11.Motels
12.Inns
SEC. 2.The City Mayor, the City Treasurer or any person
acting in behalf of the said officials are prohibited from
issuing permits, temporary or otherwise, or from
granting licenses and accepting payments for the
operation of business enumerated in the preceding
section.
SEC. 3.Owners and/or operator of
establishments engaged in, or devoted to, the businesses
enumerated in Section 1 hereof are hereby given three (3)
months from the date of approval of this ordinance within
which to wind up business operations or to transfer to
any place outside of the Ermita-Malate area or convert
said businesses to other kinds of business allowable
within the area, such as but not limited to:
1.Curio or antique shop
2.Souvenir Shops
3.Handicrafts display centers
4.Art galleries
5.Records and music shops
6.Restaurants
7.Coffee shops
8.Flower shops
9.Music lounge and sing-along restaurants, with well-
defined activities for wholesome family entertainment
that cater to both local and foreign clientele.
10.Theaters engaged in the exhibition, not only of motion
pictures but also of cultural shows, stage and theatrical
plays, art exhibitions, concerts and the like.
11.Businesses allowable within the law and medium
intensity districts as provided for in the zoning ordinances
for Metropolitan Manila, except new warehouse or open-
storage depot, dock or yard, motor repair shop, gasoline
service station, light industry with any machinery, or
funeral establishments.
SEC. 4.Any person violating any provisions of this
ordinance, shall upon conviction, be punished by
imprisonment of one (1) year or fine of FIVE
THOUSAND (P5,000.00) PESOS, or both, at the
discretion of the Court, PROVIDED, that in case of
juridical person, the President, the General Manager, or
person-in-charge of operation shall be liable thereof;
PROVIDED FURTHER, that in case of subsequent
violation and conviction, the premises of the erring
establishment shall be closed and padlocked
permanently.
SEC. 5.This ordinance shall take effect upon approval.
Enacted by the City Council of Manila at its regular
session today, March 9, 1993.
Approved by His Honor, the Mayor on March 30, 1993.
(Emphasis supplied)
In the RTC Petition, MTDC argued that the Ordinance erroneously and
improperly included in its enumeration of prohibited establishments,
motels and inns such as MTDC's Victoria Court considering that these
were not establishments for "amusement" or "entertainment" and they
were not "services or facilities for entertainment," nor did they use women
as "tools for entertainment," and neither did they "disturb the community,"
"annoy the inhabitants" or "adversely affect the social and moral welfare
of the community." 11
MTDC further advanced that the Ordinance was invalid and
unconstitutional for the following reasons: (1) The City Council has no
power to prohibit the operation of motels as Section 458 (a) 4 (iv) 12 of
the Local Government Code of 1991 (the Code) grants to the City Council
only the power to regulate the establishment, operation and maintenance
of hotels, motels, inns, pension houses, lodging houses and other similar
establishments; (2) The Ordinance is void as it is violative of Presidential
Decree (P.D.) No. 499 13 which specifically declared portions of the
Ermita-Malate area as a commercial zone with certain restrictions; (3)
The Ordinance does not constitute a proper exercise of police power as the
compulsory closure of the motel business has no reasonable relation to the
legitimate municipal interests sought to be protected; (4)
The Ordinance constitutes an ex post facto law by punishing the operation
of Victoria Court which was a legitimate business prior to its enactment;
(5) The Ordinance violates MTDC's constitutional rights in that: (a) it is
confiscatory and constitutes an invasion of plaintiff's property rights; (b)
the City Council has no power to find as a fact that a particular thing is a
nuisance per se nor does it have the power to extrajudicially destroy it;
and (6) The Ordinanceconstitutes a denial of equal protection under the
law as no reasonable basis exists for prohibiting the operation of motels
and inns, but not pension houses, hotels, lodging houses or other similar
establishments, and for prohibiting said business in the Ermita-Malate area
but not outside of this area. 14
In their Answer 15 dated 23 July 1993, petitioners City of Manila and Lim
maintained that the City Council had the power to "prohibit certain forms
of entertainment in order to protect the social and moral welfare of the
community" as provided for in Section 458 (a) 4 (vii) of the Local
Government Code, 16 which reads, thus:
Section 458.Powers, Duties, Functions and
Compensation. (a) The sangguniang panlungsod, as
the legislative body of the city, shall enact ordinances,
approve resolutions and appropriate funds for the general
welfare of the city and its inhabitants pursuant to Section
16 of this Code and in the proper exercise of the
corporate powers of the city as provided for under
Section 22 of this Code, and shall:
xxx xxx xxx
The Ordinance seeks to legislate morality but fails to address the core
issues of morality. Try as the Ordinance may to shape morality, it should
not foster the illusion that it can make a moral man out of it because
immorality is not a thing, a building or establishment; it is in the hearts of
men. The City Council instead should regulate human conduct that occurs
inside the establishments, but not to the detriment of liberty and privacy
which are covenants, premiums and blessings of democracy.
While petitioners' earnestness at curbing clearly objectionable social ills is
commendable, they unwittingly punish even the proprietors and operators
of "wholesome," "innocent" establishments. In the instant case, there is a
clear invasion of personal or property rights, personal in the case of those
individuals desirous of owning, operating and patronizing those motels
and property in terms of the investments made and the salaries to be paid
to those therein employed. If the City of Manila so desires to put an end to
prostitution, fornication and other social ills, it can instead impose
reasonable regulations such as daily inspections of the establishments for
any violation of the conditions of their licenses or permits; it may exercise
its authority to suspend or revoke their licenses for these violations; 66 and
it may even impose increased license fees. In other words, there are other
means to reasonably accomplish the desired end.
Means employed are
constitutionally infirm
The Ordinance disallows the operation of sauna parlors, massage parlors,
karaoke bars, beerhouses, night clubs, day clubs, super clubs,
discotheques, cabarets, dance halls, motels and inns in the Ermita-Malate
area. In Section 3 thereof, owners and/or operators of the enumerated
establishments are given three (3) months from the date of approval of
the Ordinancewithin which "to wind up business operations or to transfer
to any place outside the Ermita-Malate area or convert said businesses to
other kinds of business allowable within the area." Further, it states in
Section 4 that in cases of subsequent violations of the provisions of the
Ordinance, the "premises of the erring establishment shall be closed and
padlocked permanently."
It is readily apparent that the means employed by the Ordinance for the
achievement of its purposes, the governmental interference itself, infringes
on the constitutional guarantees of a person's fundamental right to liberty
and property. HCEcAa
Liberty as guaranteed by the Constitution was defined by Justice Malcolm
to include "the right to exist and the right to be free from arbitrary restraint
or servitude. The term cannot be dwarfed into mere freedom from physical
restraint of the person of the citizen, but is deemed to embrace the right of
man to enjoy the faculties with which he has been endowed by his Creator,
subject only to such restraint as are necessary for the common
welfare." 67 In accordance with this case, the rights of the citizen to be
free to use his faculties in all lawful ways; to live and work where he will;
to earn his livelihood by any lawful calling; and to pursue any avocation
are all deemed embraced in the concept of liberty. 68
The U.S. Supreme Court in the case of Roth v. Board of
Regents, 69 sought to clarify the meaning of "liberty." It said:
While the Court has not attempted to define with
exactness the liberty . . . guaranteed [by the Fifth and
Fourteenth Amendments], the term denotes not merely
freedom from bodily restraint but also the right of the
individual to contract, to engage in any of the common
occupations of life, to acquire useful knowledge, to
marry, establish a home and bring up children, to worship
God according to the dictates of his own conscience, and
generally to enjoy those privileges long recognized . . . as
essential to the orderly pursuit of happiness by free men.
In a Constitution for a free people, there can be no doubt
that the meaning of "liberty" must be broad indeed.
In another case, it also confirmed that liberty protected by the due process
clause includes personal decisions relating to marriage, procreation,
contraception, family relationships, child rearing, and education. In
explaining the respect the Constitution demands for the autonomy of the
person in making these choices, the U.S. Supreme Court explained:
These matters, involving the most intimate and personal
choices a person may make in a lifetime, choices central
to personal dignity and autonomy, are central to the
liberty protected by the Fourteenth Amendment. At the
heart of liberty is the right to define one's own concept of
existence, of meaning, of universe, and of the mystery of
human life. Beliefs about these matters could not define
the attributes of personhood where they formed under
compulsion of the State. 70
Persons desirous to own, operate and patronize the enumerated
establishments under Section 1 of the Ordinance may seek autonomy for
these purposes.
Motel patrons who are single and unmarried may invoke this right to
autonomy to consummate their bonds in intimate sexual conduct within
the motel's premises be it stressed that their consensual sexual behavior
does not contravene any fundamental state policy as contained in the
Constitution. 71 Adults have a right to choose to forge such relationships
with others in the confines of their own private lives and still retain their
dignity as free persons. The liberty protected by the Constitution allows
persons the right to make this choice. 72 Their right to liberty under the
due process clause gives them the full right to engage in their conduct
without intervention of the government, as long as they do not run afoul of
the law. Liberty should be the rule and restraint the exception.
Liberty in the constitutional sense not only means freedom from unlawful
government restraint; it must include privacy as well, if it is to be a
repository of freedom. The right to be let alone is the beginning of all
freedom it is the most comprehensive of rights and the right most
valued by civilized men. 73
The concept of liberty compels respect for the individual whose claim to
privacy and interference demands respect. As the case of Morfe
v. Mutuc, 74 borrowing the words of Laski, so very aptly stated:
Man is one among many, obstinately refusing reduction
to unity. His separateness, his isolation, are indefeasible;
indeed, they are so fundamental that they are the basis on
which his civic obligations are built. He cannot abandon
the consequences of his isolation, which are, broadly
speaking, that his experience is private, and the will built
out of that experience personal to himself. If he
surrenders his will to others, he surrenders himself. If his
will is set by the will of others, he ceases to be a master
of himself. I cannot believe that a man no longer a master
of himself is in any real sense free.
Indeed, the right to privacy as a constitutional right was recognized
in Morfe, the invasion of which should be justified by a compelling state
interest. Morfe accorded recognition to the right to privacy independently
of its identification with liberty; in itself it is fully deserving of
constitutional protection. Governmental powers should stop short of
certain intrusions into the personal life of the citizen. 75
There is a great temptation to have an extended discussion on these civil
liberties but the Court chooses to exercise restraint and restrict itself to the
issues presented when it should. The previous pronouncements of the
Court are not to be interpreted as a license for adults to engage in criminal
conduct. The reprehensibility of such conduct is not diminished. The
Court only reaffirms and guarantees their right to make this choice. Should
they be prosecuted for their illegal conduct, they should suffer the
consequences of the choice they have made. That, ultimately, is their
choice.
Modality employed is
unlawful taking
In addition, the Ordinance is unreasonable and oppressive as it
substantially divests the respondent of the beneficial use of its
property. 76 The Ordinance in Section 1 thereof forbids the running of the
enumerated businesses in the Ermita-Malate area and in Section 3 instructs
its owners/operators to wind up business operations or to transfer outside
the area or convert said businesses into allowed businesses. An ordinance
which permanently restricts the use of property that it can not be used for
any reasonable purpose goes beyond regulation and must be recognized as
a taking of the property without just compensation. 77 It is intrusive and
violative of the private property rights of individuals. EHTCAa
The Constitution expressly provides in Article III, Section 9, that "private
property shall not be taken for public use without just compensation." The
provision is the most important protection of property rights in the
Constitution. This is a restriction on the general power of the government
to take property. The constitutional provision is about ensuring that the
government does not confiscate the property of some to give it to others.
In part too, it is about loss spreading. If the government takes away a
person's property to benefit society, then society should pay. The principal
purpose of the guarantee is "to bar the Government from forcing some
people alone to bear public burdens which, in all fairness and justice,
should be borne by the public as a whole. 78
There are two different types of taking that can be identified. A
"possessory" taking occurs when the government confiscates or physically
occupies property. A "regulatory" taking occurs when the government's
regulation leaves no reasonable economically viable use of the
property. 79
In the landmark case of Pennsylvania Coal v. Mahon, 80 it was held that a
taking also could be found if government regulation of the use of property
went "too far." When regulation reaches a certain magnitude, in most if
not in all cases there must be an exercise of eminent domain and
compensation to support the act. While property may be regulated to a
certain extent, if regulation goes too far it will be recognized as a
taking. 81
POLLUTION ADJUDICATION
BOARD, petitioner, vs. COURT OF APPEALS and
SOLAR TEXTILE FINISHING
CORPORATION, respondents.
SYLLABUS
RE S O LUTI ON
FELICIANO, J p:
DECISION
CHICO-NAZARIO, J p:
At issue in this case is the validity of Section 5(f) of Republic Act No.
7924 creating the Metropolitan Manila Development Authority (MMDA),
which authorizes it to confiscate and suspend or revoke driver's licenses in
the enforcement of traffic laws and regulations.
The issue arose from an incident involving the respondent Dante O. Garin,
a lawyer, who was issued a traffic violation receipt (TVR) and his driver's
license confiscated for parking illegally along Gandara Street, Binondo,
Manila, on 05 August 1995. The following statements were printed on the
TVR:
YOU ARE HEREBY DIRECTED TO REPORT TO THE
MMDA TRAFFIC OPERATIONS CENTER PORT
AREA MANILA AFTER 48 HOURS FROM DATE OF
APPREHENSION FOR DISPOSITION/APPROPRIATE
ACTION THEREON. CRIMINAL CASE SHALL BE
FILED FOR FAILURE TO REDEEM LICENSE AFTER
30 DAYS.
VALID AS TEMPORARY DRIVER'S LICENSE FOR
SEVEN DAYS FROM DATE OF APPREHENSION. 1
Shortly before the expiration of the TVR's validity, the respondent
addressed a letter 2 to then MMDA Chairman Prospero Oreta requesting
the return of his driver's license, and expressing his preference for his case
to be filed in court.
Receiving no immediate reply, Garin filed the original complaint 3 with
application for preliminary injunction in Branch 260 of the Regional Trial
Court (RTC) of Paraaque, on 12 September 1995, contending that, in the
absence of any implementing rules and regulations, Sec. 5(f) of Rep. Act
No. 7924 grants the MMDA unbridled discretion to deprive erring
motorists of their licenses, pre-empting a judicial determination of the
validity of the deprivation, thereby violating the due process clause of the
Constitution. The respondent further contended that the provision violates
the constitutional prohibition against undue delegation of legislative
authority, allowing as it does the MMDA to fix and impose unspecified
and therefore unlimited fines and other penalties on erring
motorists. SaHTCE
In support of his application for a writ of preliminary injunction, Garin
alleged that he suffered and continues to suffer great and irreparable
damage because of the deprivation of his license and that, absent any
implementing rules from the Metro Manila Council, the TVR and the
confiscation of his license have no legal basis.
For its part, the MMDA, represented by the Office of the Solicitor
General, pointed out that the powers granted to it by Sec. 5(f) of Rep. Act
No. 7924 are limited to the fixing, collection and imposition of fines and
penalties for traffic violations, which powers are legislative and executive
in nature; the judiciary retains the right to determine the validity of the
penalty imposed. It further argued that the doctrine of separation of
powers does not preclude "admixture" of the three powers of government
in administrative agencies. 4
The MMDA also refuted Garin's allegation that the Metro Manila Council,
the governing board and policy making body of the petitioner, has as yet
to formulate the implementing rules for Sec. 5(f) of Rep. Act No. 7924 and
directed the court's attention to MMDA Memorandum Circular No. TT-95-
001 dated 15 April 1995. Respondent Garin, however, questioned the
validity of MMDA Memorandum Circular No. TT-95-001, as he claims
that it was passed by the Metro Manila Council in the absence of a
quorum.
Judge Helen Bautista-Ricafort issued a temporary restraining order on 26
September 1995, extending the validity of the TVR as a temporary driver's
license for twenty more days. A preliminary mandatory injunction was
granted on 23 October 1995, and the MMDA was directed to return the
respondent's driver's license.
On 14 August 1997, the trial court rendered the assailed decision 5 in
favor of the herein respondent and held that:
a. There was indeed no quorum in that First Regular
Meeting of the MMDA Council held on March 23, 1995,
hence MMDA Memorandum Circular No. TT-95-001,
authorizing confiscation of driver's licenses upon
issuance of a TVR, is void ab initio.
b. The summary confiscation of a driver's license without
first giving the driver an opportunity to be heard;
depriving him of a property right (driver's license)
without DUE PROCESS; not filling (sic) in Court the
complaint of supposed traffic infraction, cannot be
justified by any legislation (and is) hence
unconstitutional.
WHEREFORE, the temporary writ of preliminary
injunction is hereby made permanent; th(e) MMDA is
directed to return to plaintiff his driver's license; th(e)
MMDA is likewise ordered to desist from confiscating
driver's license without first giving the driver the
opportunity to be heard in an appropriate proceeding.
In filing this petition, 6 the MMDA reiterates and reinforces its argument
in the court below and contends that a license to operate a motor vehicle is
neither a contract nor a property right, but is a privilege subject to
reasonable regulation under the police power in the interest of the public
safety and welfare. The petitioner further argues that revocation or
suspension of this privilege does not constitute a taking without due
process as long as the licensee is given the right to appeal the revocation.
To buttress its argument that a licensee may indeed appeal the taking and
the judiciary retains the power to determine the validity of the
confiscation, suspension or revocation of the license, the petitioner points
out that under the terms of the confiscation, the licensee has three options:
1. To voluntarily pay the imposable fine,
2. To protest the apprehension by filing a protest with the
MMDA Adjudication Committee, or
3. To request the referral of the TVR to the Public
Prosecutor's Office.
The MMDA likewise argues that Memorandum Circular No. TT-95-001
was validly passed in the presence of a quorum, and that the lower court's
finding that it had not was based on a "misapprehension of facts," which
the petitioner would have us review. Moreover, it asserts that though the
circular is the basis for the issuance of TVRs, the basis for the summary
confiscation of licenses is Sec. 5(f) of Rep. Act No. 7924 itself, and that
such power is self-executory and does not require the issuance of any
implementing regulation or circular. SHacCD
Meanwhile, on 12 August 2004, the MMDA, through its Chairman Bayani
Fernando, implemented Memorandum Circular No. 04, Series of 2004,
outlining the procedures for the use of the Metropolitan Traffic Ticket
(MTT) scheme. Under the circular, erring motorists are issued an MTT,
which can be paid at any Metrobank branch. Traffic enforcers may no
longer confiscate drivers' licenses as a matter of course in cases of traffic
violations. All motorists with unredeemed TVRs were given seven days
from the date of implementation of the new system to pay their fines and
redeem their license or vehicle plates. 7
It would seem, therefore, that insofar as the absence of a prima facie case
to enjoin the petitioner from confiscating drivers' licenses is concerned,
recent events have overtaken the Court's need to decide this case, which
has been rendered moot and academic by the implementation
of Memorandum Circular No. 04, Series of 2004.
The petitioner, however, is not precluded from re-implementing
Memorandum Circular No. TT-95-001, or any other scheme, for that
matter, that would entail confiscating drivers' licenses. For the proper
implementation, therefore, of the petitioner's future programs, this Court
deems it appropriate to make the following observations:
1. A license to operate a motor vehicle is a privilege that the state may
withhold in the exercise of its police power.
The petitioner correctly points out that a license to operate a motor vehicle
is not a property right, but a privilege granted by the state, which may be
suspended or revoked by the state in the exercise of its police power, in the
interest of the public safety and welfare, subject to the procedural due
process requirements. This is consistent with our rulings in Pedro v.
Provincial Board of Rizal 8 on the license to operate a cockpit, Tan v.
Director of Forestry 9 and Oposa v. Factoran 10 on timber licensing
agreements, and Surigao Electric Co., Inc. v. Municipality of
Surigao 11 on a legislative franchise to operate an electric plant.
Petitioner cites a long list of American cases to prove this point, such
as State ex. Rel. Sullivan, 12 which states in part that, "the legislative
power to regulate travel over the highways and thoroughfares of the state
for the general welfare is extensive. It may be exercised in any reasonable
manner to conserve the safety of travelers and pedestrians. Since motor
vehicles are instruments of potential danger, their registration and the
licensing of their operators have been required almost from their first
appearance. The right to operate them in public places is not a natural and
unrestrained right, but a privilege subject to reasonable regulation, under
the police power, in the interest of the public safety and welfare. The
power to license imports further power to withhold or to revoke such
license upon noncompliance with prescribed conditions."
Likewise, the petitioner quotes the Pennsylvania Supreme Court
in Commonwealth v. Funk, 13 to the effect that: "Automobiles are vehicles
of great speed and power. The use of them constitutes an element of
danger to persons and property upon the highways. Carefully operated, an
automobile is still a dangerous instrumentality, but, when operated by
careless or incompetent persons, it becomes an engine of destruction. The
Legislature, in the exercise of the police power of the commonwealth, not
only may, but must, prescribe how and by whom motor vehicles shall be
operated on the highways. One of the primary purposes of a system of
general regulation of the subject matter, as here by the Vehicle Code, is to
insure the competency of the operator of motor vehicles. Such a general
law is manifestly directed to the promotion of public safety and is well
within the police power."
The common thread running through the cited cases is that it is the
legislature, in the exercise of police power, which has the power and
responsibility to regulate how and by whom motor vehicles may be
operated on the state highways. HIAEcT
2. The MMDA is not vested with police power.
In Metro Manila Development Authority v. Bel-Air Village Association,
Inc., 14 we categorically stated that Rep. Act No. 7924 does not grant the
MMDA with police power, let alone legislative power, and that all its
functions are administrative in nature.
The said case also involved the herein petitioner MMDA which claimed
that it had the authority to open a subdivision street owned by the Bel-Air
Village Association, Inc. to public traffic because it is an agent of the state
endowed with police power in the delivery of basic services in Metro
Manila. From this premise, the MMDA argued that there was no need for
the City of Makati to enact an ordinance opening Neptune Street to the
public.
Tracing the legislative history of Rep. Act No. 7924 creating the MMDA,
we concluded that the MMDA is not a local government unit or a public
corporation endowed with legislative power, and, unlike its predecessor,
the Metro Manila Commission, it has no power to enact ordinances for the
welfare of the community. Thus, in the absence of an ordinance from the
City of Makati, its own order to open the street was invalid.
We restate here the doctrine in the said decision as it applies to the case at
bar: police power, as an inherent attribute of sovereignty, is the power
vested by the Constitution in the legislature to make, ordain, and establish
all manner of wholesome and reasonable laws, statutes and ordinances,
either with penalties or without, not repugnant to the Constitution, as they
shall judge to be for the good and welfare of the commonwealth, and for
the subjects of the same.
Having been lodged primarily in the National Legislature, it cannot be
exercised by any group or body of individuals not possessing legislative
power. The National Legislature, however, may delegate this power to the
president and administrative boards as well as the lawmaking bodies of
municipal corporations or local government units (LGUs). Once
delegated, the agents can exercise only such legislative powers as are
conferred on them by the national lawmaking body.
Our Congress delegated police power to the LGUs in the Local
Government Code of 1991. 15 A local government is a "political
subdivision of a nation or state which is constituted by law and has
substantial control of local affairs." 16 Local government units are the
provinces, cities, municipalities and barangays, which exercise police
power through their respective legislative bodies.
Metropolitan or Metro Manila is a body composed of several local
government units. With the passage of Rep. Act No. 7924 in 1995,
Metropolitan Manila was declared as a "special development and
administrative region" and the administration of "metro-wide" basic
services affecting the region placed under "a development authority"
referred to as the MMDA. Thus:
. . . [T]he powers of the MMDA are limited to the
following acts: formulation, coordination, regulation,
implementation, preparation, management, monitoring,
setting of policies, installation of a system and
administration. There is no syllable in R. A. No. 7924
that grants the MMDA police power, let alone legislative
power. Even the Metro Manila Council has not been
delegated any legislative power. Unlike the legislative
bodies of the local government units, there is no
provision in R. A. No. 7924 that empowers the MMDA
or its Council to "enact ordinances, approve
resolutions and appropriate funds for the general
welfare" of the inhabitants of Metro Manila. The
MMDA is, as termed in the charter itself, a "development
authority." It is an agency created for the purpose of
laying down policies and coordinating with the
various national government agencies, people's
organizations, non-governmental organizations and
the private sector for the efficient and expeditious
delivery of basic services in the vast metropolitan
area. All its functions are administrative in nature and
these are actually summed up in the charter itself, viz:
"Sec. 2. Creation of the Metropolitan Manila
Development Authority. . . .
The MMDA shall perform planning, monitoring
and coordinative functions, and in the process
exercise regulatory and supervisory authority over
the delivery of metro-wide services within Metro
Manila, without diminution of the autonomy of
the local government units concerning purely
local matters." IcHSCT
xxx xxx xxx
Clearly, the MMDA is not a political unit of government.
The power delegated to the MMDA is that given to the
Metro Manila Council to promulgate administrative rules
and regulations in the implementation of the MMDA's
functions. There is no grant of authority to enact
ordinances and regulations for the general welfare of
the inhabitants of the metropolis. 17(footnotes omitted,
emphasis supplied)
Therefore, insofar as Sec. 5(f) of Rep. Act No. 7924 is understood by the
lower court and by the petitioner to grant the MMDA the power to
confiscate and suspend or revoke drivers' licenses without need of any
other legislative enactment, such is an unauthorized exercise of police
power.
3. Sec. 5(f) grants the MMDA with the duty to enforce existing traffic
rules and regulations.
Section 5 of Rep. Act No. 7924 enumerates the "Functions and Powers of
the Metro Manila Development Authority." The contested clause in Sec.
5(f) states that the petitioner shall "install and administer a single ticketing
system, fix, impose and collect fines and penalties for all kinds of
violations of traffic rules and regulations, whether moving or nonmoving
in nature, and confiscate and suspend or revoke drivers' licenses in the
enforcement of such traffic laws and regulations, the provisions of Rep.
Act No. 4136 18 and P.D. No. 1605 19 to the contrary notwithstanding,"
and that "(f)or this purpose, the Authority shall enforce all traffic laws and
regulations in Metro Manila, through its traffic operation center, and may
deputize members of the PNP, traffic enforcers of local government units,
duly licensed security guards, or members of non-governmental
organizations to whom may be delegated certain authority, subject to such
conditions and requirements as the Authority may impose."
Thus, where there is a traffic law or regulation validly enacted by the
legislature or those agencies to whom legislative powers have been
delegated (the City of Manila in this case), the petitioner is not precluded
and in fact is duty-bound to confiscate and suspend or revoke
drivers' licenses in the exercise of its mandate of transport and traffic
management, as well as the administration and implementation of all
traffic enforcement operations, traffic engineering services and traffic
education programs. 20
This is consistent with our ruling in Bel-Air that the MMDA is a
development authority created for the purpose of laying down policies and
coordinating with the various national government agencies, people's
organizations, non-governmental organizations and the private sector,
which may enforce, but not enact, ordinances.
This is also consistent with the fundamental rule of statutory construction
that a statute is to be read in a manner that would breathe life into it, rather
than defeat it, 21 and is supported by the criteria in cases of this nature that
all reasonable doubts should be resolved in favor of the constitutionality of
a statute. 22
A last word. The MMDA was intended to coordinate services with metro-
wide impact that transcend local political boundaries or would entail huge
expenditures if provided by the individual LGUs, especially with regard to
transport and traffic management, 23 and we are aware of the valiant
efforts of the petitioner to untangle the increasingly traffic-snarled roads of
Metro Manila. But these laudable intentions are limited by the MMDA's
enabling law, which we can but interpret, and petitioner must be reminded
that its efforts in this respect must be authorized by a valid law, or
ordinance, or regulation arising from a legitimate source. AEDISC
WHEREFORE, the petition is dismissed.
SO ORDERED.
Puno, Austria-Martinez, Callejo, Sr. and Tinga, JJ., concur.
||| (MMDA v. Garin, G.R. No. 130230, April 15, 2005)
Case No. 6
SECOND DIVISION
[G.R. No. 126102. December 4, 2000.]
SYNOPSIS
SYLLABUS
1. STATUTORY CONSTRUCTION; LAWS ARE GENERALLY GIVEN
PROSPECTIVE APPLICATION; LAW WHICH INVOLVES POLICE
POWER IS AN EXCEPTION. In general, we agree that laws are to be
construed as having only prospective operation. Lex prospicit, non
respicit. Equally settled, only laws existing at the time of the execution of
a contract are applicable thereto and are not later statutes, unless the latter
are specifically intended to have a retroactive effect. A later law which
enlarges, abridges, or in any manner changes the intent of the parties to the
contract necessarily impairs the contract itself and cannot be given
retroactive effect without violating the constitutional prohibition against
impairment of contracts. But, the foregoing principles do admit of certain
exceptions. One involves police power. A law enacted in the exercise of
police power to regulate or govern certain activities or transactions could
be given retroactive effect and may reasonably impair vested rights or
contracts. Police power legislation is applicable not only to future
contracts, but equally to those already in existence. Nonimpairment of
contracts or vested rights clauses will have to yield to the superior and
legitimate exercise by the State of police power to promote the health,
morals, peace, education, good order, safety, and general welfare of the
people. Moreover, statutes in exercise of valid police power must be read
into every contract.
2. CONSTITUTIONAL LAW; POLICE POWER; CONTRACTUAL
STIPULATIONS AND VESTED RIGHTS MUST YIELD TO POLICE
POWER; CASE AT BAR. Noteworthy, in Sangalang vs. Intermediate
Appellate Court, we already upheld MMC Ordinance No. 81-01 as a
legitimate police power measure. Following our ruling in Ortigas & Co.,
Ltd. vs. Feati Bank & Trust Co., 94 SCRA 533 (1979), the contractual
stipulations annotated on the Torrens Title, on which Ortigas relies, must
yield to the ordinance. When that stretch of Ortigas Avenue from
Roosevelt Street to Madison Street was reclassified as a commercial zone
by the Metropolitan Manila Commission in March 1981, the restrictions in
the contract of sale between Ortigas and Hermoso, limiting all
construction on the disputed lot to single-family residential buildings,
were deemed extinguished by the retroactive operation of the zoning
ordinance and could no longer be enforced. While our legal system
upholds the sanctity of contract so that a contract is deemed law between
the contracting parties, nonetheless, stipulations in a contract cannot
contravene "law, morals, good customs, public order, or public policy."
Otherwise such stipulations would be deemed null and void.
3. REMEDIAL LAW; CIVIL PROCEDURE; REAL PARTY IN
INTEREST; LESSEE WHO BUILT COMMERCIAL STRUCTURE
SOUGHT TO BE DEMOLISHED IS A REAL PARTY IN INTEREST.
By real interest is meant a present substantial interest, as distinguished
from a mere expectancy or a future, contingent, subordinate, or
consequential interest. Tested by the foregoing definition, private
respondent in this case is clearly a real party in interest. It is not disputed
that he is in possession of the lot pursuant to valid lease. He is a possessor
in the concept of a "holder of the thing" under Article 525 of the Civil
Code. He was impleaded as a defendant in the amended complaint in Civil
Case No. 64931. Further, what petitioner seeks to enjoin is the building by
respondent of a commercial structure on the lot. Clearly, it is private
respondent's acts which are in issue, and his interest in said issue cannot
be a mere incidental interest. In its amended complaint, petitioner prayed
for, among others, judgment "ordering the demolition of all improvements
illegally built on the lot in question." These show that it is petitioner
Mathay III, doing business as "Greenhills Autohaus, Inc.," and not only
the Hermosos, who will be adversely affected by the court's
decree. ACEIac
DECISION
QUISUMBING, J p:
This petition seeks to reverse the decision of the Court of Appeals, dated
March 25, 1996, in CA-G.R. SP No. 39193, which nullified the writ of
preliminary injunction issued by the Regional Trial Court of Pasig City,
Branch 261, in Civil Case No. 64931. It also assails the resolution of the
appellate court, dated August 13, 1996, denying petitioner's motion for
reconsideration. ATcEDS
The facts of this case, as culled from the records, are as follows:
On August 25, 1976, petitioner Ortigas & Company sold to Emilia
Hermoso, a parcel of land known as Lot 1, Block 21, Psd-66759, with an
area of 1,508 square meters, located in Greenhills Subdivision IV, San
Juan, Metro Manila, and covered by Transfer Certificate of Title No. 0737.
The contract of sale provided that the lot:
1. . . . (1) be used exclusively . . . for residential purposes
only, and not more than one single-family
residential building will be constructed thereon, . .
.
xxx xxx xxx
6. The BUYER shall not erect . . . any sign or billboard
on the roof . . . for advertising purposes . . .
xxx xxx xxx
11. No single-family residential building shall be erected .
. . until the building plans, specification . . . have
been approved by the SELLER . . .
xxx xxx xxx
14. . . . restrictions shall run with the land and shall be
construed as real covenants until December 31,
2025 when they shall cease and terminate . . . 1
These and the other conditions were duly annotated on the certificate of
title issued to Emilia.
In 1981, the Metropolitan Manila Commission (now Metropolitan Manila
Development Authority) enacted MMC Ordinance No. 81-01, also known
as the Comprehensive Zoning Area for the National Capital Region. The
ordinance reclassified as a commercial area a portion of Ortigas Avenue
from Madison to Roosevelt Streets of Greenhills Subdivision where the lot
is located.
On June 8, 1984, private respondent Ismael Mathay III leased the lot from
Emilia Hermoso and J.P. Hermoso Realty Corp.. The lease contract did not
specify the purposes of the lease. Thereupon, private respondent
constructed a single story commercial building for Greenhills Autohaus,
Inc., a car sales company.
On January 18, 1995, petitioner filed a complaint against Emilia Hermoso
with the Regional Trial Court of Pasig, Branch 261. Docketed as Civil
Case No. 64931, the complaint sought the demolition of the said
commercial structure for having violated the terms and conditions of the
Deed of Sale. Complainant prayed for the issuance of a temporary
restraining order and a writ of preliminary injunction to prohibit petitioner
from constructing the commercial building and/or engaging in commercial
activity on the lot. The complaint was later amended to implead Ismael G.
Mathay III and J.P. Hermoso Realty Corp., which has a ten percent (10%)
interest in the lot.
In his answer, Mathay III denied any knowledge of the restrictions on the
use of the lot and filed a cross-claim against the Hermosos.
On June 16, 1995, the trial court issued the writ of preliminary injunction.
On June 29, 1995, Mathay III moved to set aside the injunctive order, but
the trial court denied the motion.
Mathay III then filed with the Court of Appeals a special civil action
for certiorari, docketed as CA-G.R. SP No. 39193, ascribing to the trial
court grave abuse of discretion in issuing the writ of preliminary
injunction. He claimed that MMC Ordinance No. 81-01 classified the area
where the lot was located as commercial area and said ordinance must be
read into the August 25, 1976 Deed of Sale as a concrete exercise of police
power.
Ortigas and Company averred that inasmuch as the restrictions on the use
of the lot were duly annotated on the title it issued to Emilia Hermoso,
said restrictions must prevail over the ordinance, specially since these
restrictions were agreed upon before the passage of MMC Ordinance No.
81-01.
On March 25, 1996, the appellate court disposed of the case as follows:
WHEREFORE, in light of the foregoing, the petition is
hereby GRANTED. The assailed orders are hereby
nullified and set aside.
SO ORDERED. 2
In finding for Mathay III, the Court of Appeals held that the MMC
Ordinance No. 81-01 effectively nullified the restrictions allowing only
residential use of the property in question.
Ortigas seasonably moved for reconsideration, but the appellate court
denied it on August 13, 1996.
Hence, the instant petition.
In its Memorandum, petitioner now submits that the "principal issue in
this case is whether respondent Court of Appeals correctly set aside the
Order dated June 16, 1995 of the trial court which issued the writ of
preliminary injunction on the sole ground that MMC Ordinance No. 81-01
nullified the building restriction imposing exclusive residential use on the
property in question." 3 It also asserts that "Mathay III lacks legal capacity
to question the validity of conditions of the deed of sale; and he is barred
by estoppel or waiver to raise the same question like his principals, the
owners." 4 Lastly, it avers that the appellate court "unaccountably failed to
address" several questions of fact.
Principally, we must resolve the issue of whether the Court of Appeals
erred in holding that the trial court committed grave abuse of discretion
when it refused to apply MMC Ordinance No. 81-01 to Civil Case No.
64931.
But first, we must address petitioner's allegation that the Court of Appeals
"unaccountably failed to address" questions of fact. For basic is the rule
that factual issues may not be raised before this Court in a petition for
review and this Court is not duty-bound to consider said questions. 5 CA-
G.R. SP No. 39193 was a special civil action for certiorari, and the
appellate court only had to determine if the trial court committed grave
abuse of discretion amounting to want or excess of jurisdiction in issuing
the writ of preliminary injunction. Thus, unless vital to our determination
of the issue at hand, we shall refrain from further consideration of factual
questions.
Petitioner contends that the appellate court erred in limiting its decision to
the cited zoning ordinance. It avers that a contractual right is not
automatically discarded once a claim is made that it conflicts with police
power. Petitioner submits that the restrictive clauses in the questioned
contract is not in conflict with the zoning ordinance. For one, according to
petitioner, the MMC Ordinance No. 81-01 did not prohibit the
construction of residential buildings. Petitioner argues that even with the
zoning ordinance, the seller and buyer of the re-classified lot can
voluntarily agree to an exclusive residential use thereof. Hence, petitioner
concludes that the Court of Appeals erred in holding that the condition
imposing exclusive residential use was effectively nullified by the zoning
ordinance. EcHAaS
In its turn, private respondent argues that the appellate court correctly
ruled that the trial court had acted with grave abuse of discretion in
refusing to subject the contract to the MMC Ordinance No. 81-01. He
avers that the appellate court properly held the police power superior to
the non-impairment of contract clause in the Constitution. He concludes
that the appellate court did not err in dissolving the writ of preliminary
injunction issued by the trial court in excess of its jurisdiction.
We note that in issuing the disputed writ of preliminary injunction, the trial
court observed that the contract of sale was entered into in August 1976,
while the zoning ordinance was enacted only in March 1981. The trial
court reasoned that since private respondent had failed to show that MMC
Ordinance No. 81-01 had retroactive effect, said ordinance should be
given prospective application only, 6 citing Co vs. Intermediate Appellate
Court, 162 SCRA 390 (1988).
In general, we agree that laws are to be construed as having only
prospective operation. Lex prospicit, non respicit. Equally settled, only
laws existing at the time of the execution of a contract are applicable
thereto and not later statutes, unless the latter are specifically intended to
have retroactive effect. 7 A later law which enlarges, abridges, or in any
manner changes the intent of the parties to the contract necessarily impairs
the contract itself 8 and cannot be given retroactive effect without
violating the constitutional prohibition against impairment of contracts. 9
But, the foregoing principles do admit of certain exceptions. One involves
police power. A law enacted in the exercise of police power to regulate or
govern certain activities or transactions could be given retroactive effect
and may reasonably impair vested rights or contracts. Police power
legislation is applicable not only to future contracts, but equally to those
already in existence. 10 Non-impairment of contracts or vested rights
clauses will have to yield to the superior and legitimate exercise by the
State of police power to promote the health, morals, peace, education,
good order, safety, and general welfare of the people. 11 Moreover,
statutes in exercise of valid police power must be read into every
contract. 12 Noteworthy, inSangalang vs. Intermediate Appellate
Court, 13 we already upheld MMC Ordinance No. 81-01 as a legitimate
police power measure.
The trial court's reliance on the Co vs. IAC, 14 is misplaced. In Co, the
disputed area was agricultural and Ordinance No. 81-01 did not
specifically provide that "it shall have retroactive effect so as to
discontinue all rights previously acquired over lands located within the
zone which are neither residential nor light industrial in nature," 15 and
stated with respect to agricultural areas covered that "the zoning ordinance
should be given prospective operation only." 16 The area in this case
involves not agricultural but urban residential land. Ordinance No. 81-01
retroactively affected the operation of the zoning ordinance in Greenhills
by reclassifying certain locations therein as commercial.
Following our ruling in Ortigas & Co., Ltd. vs. Feati Bank & Trust Co., 94
SCRA 533 (1979), the contractual stipulations annotated on the Torrens
Title, on which Ortigas relies, must yield to the ordinance. When that
stretch of Ortigas Avenue from Roosevelt Street to Madison Street was
reclassified as a commercial zone by the Metropolitan Manila
Commission in March 1981, the restrictions in the contract of sale
between Ortigas and Hermoso, limiting all construction on the disputed lot
to single-family residential buildings, were deemed extinguished by the
retroactive operation of the zoning ordinance and could no longer be
enforced. While our legal system upholds the sanctity of contract so that a
contract is deemed law between the contracting parties, 17 nonetheless,
stipulations in a contract cannot contravene "law, morals, good customs,
public order, or public policy." 18 Otherwise such stipulations would be
deemed null and void. Respondent court correctly found that the trial court
committed in this case a grave abuse of discretion amounting to want of or
excess of jurisdiction in refusing to treat Ordinance No. 81-01 as
applicable to Civil Case No. 64931. In resolving matters in litigation,
judges are not only duty-bound to ascertain the facts and the applicable
laws, 19 they are also bound by their oath of office to apply the applicable
law. 20
As a secondary issue, petitioner contends that respondent Mathay III, as a
mere lessee of the lot in question, is a total stranger to the deed of sale and
is thus barred from questioning the conditions of said deed. Petitioner
points out that the owners of the lot voluntarily agreed to the restrictions
on the use of the lot and do not question the validity of these restrictions.
Petitioner argues that Mathay III as a lessee is merely an agent of the
owners, and could not override and rise above the status of his principals.
Petitioner submits that he could not have a higher interest than those of the
owners, the Hermosos, and thus had no locus standi to file CA-G.R. SP
No. 39193 to dissolve the injunctive writ issued by the RTC of Pasig City.
For his part, private respondent argues that as the lessee who built the
commercial structure, it is he and he alone who stands to be either
benefited or injured by the results of the judgment in Civil Case No.
64931. He avers he is the party with real interest in the subject matter of
the action, as it would be his business, not the Hermosos', which would
suffer had not the respondent court dissolved the writ of preliminary
injunction.
A real party in interest is defined as "the party who stands to be benefited
or injured by the judgment or the party entitled to the avails of the
suit." "Interest" within the meaning of the rule means material interest, an
interest in issue and to be affected by the decree, as distinguished from
mere interest in the question involved, or a mere incidental interest. 21 By
real interest is meant a present substantial interest, as distinguished from a
mere expectancy or a future, contingent, subordinate, or consequential
interest. 22
Tested by the foregoing definition, private respondent in this case is
clearly a real party in interest. It is not disputed that he is in possession of
the lot pursuant to a valid lease. He is a possessor in the concept of a
"holder of the thing" under Article 525 of the Civil Code. 23 He was
impleaded as a defendant in the amended complaint in Civil Case No.
64931. Further, what petitioner seeks to enjoin is the building by
respondent of a commercial structure on the lot. Clearly, it is private
respondent's acts which are in issue, and his interest in said issue cannot
be a mere incidental interest. In its amended complaint, petitioner prayed
for, among others, judgment "ordering the demolition of all improvements
illegally built on the lot in question."24 These show that it is petitioner
Mathay III, doing business as "Greenhills Autohaus, Inc.," and not only
the Hermosos, who will be adversely affected by the court's decree.
Petitioner also cites the rule that a stranger to a contract has no rights or
obligations under it, 25 and thus has no standing to challenge its
validity. 26 But in seeking to enforce the stipulations in the deed of sale,
petitioner impleaded private respondent as a defendant. Thus petitioner
must recognize that where a plaintiff has impleaded a party as a defendant,
he cannot subsequently question the latter's standing in court. 27
WHEREFORE, the instant petition is DENIED. The challenged decision
of the Court of Appeals dated March 25, 1996, as well as the assailed
resolution of August 13, 1996, in CA-G.R. SP No. 39193 is AFFIRMED.
Costs against petitioner.
SO ORDERED.
Bellosillo, Mendoza, Buena, and De Leon, Jr., JJ ., concur.
Case No. 7
EN BANC
[G.R. No. 119694. May 22, 1995.]
SYLLABUS
RE S O LUTI ON
FELICIANO, J p:
is not ripe for judicial review for lack of an actual case or controversy
involving, as the very lis mota thereof, the constitutionality of Section
8.
1. Section 2 of Resolution No. 2772, in its present form and as
interpreted by Comelec in its 22 March 1995 letter directives, purports
to require print media enterprises to "donate" free print space to
Comelec. As such, Section 2 suffers from fatal constitutional vice and
must be set aside and nullified. cdll
2. To the extent it pertains to Section 8 of Resolution No. 2772,
the Petition for Certiorari and Prohibition must be dismissed for lack
of an actual, justiciable case or controversy.
WHEREFORE, for all the foregoing, the Petition for Certiorari
and Prohibition is GRANTED in part and Section 2 of Resolution No.
2772 in its present from and the related letter-directives dated 22
March 1995 are hereby SET ASIDE as null and void, and the
Temporary Restraining Order is hereby MADE PERMANENT. The
Petition is DISMISSED in part, to the extent it relates to Section 8 of
Resolution No. 2772. No pronouncement as to costs.
Narvasa, C.J ., Padilla, Regalado, Davide, Jr., Romero, Bellosillo, Melo,
Puno, Vitug, Kapunan, Mendoza and Francisco, JJ., concur.
Quiason, J., is on leave.
||| (Philippine Press Institute, Inc. v. COMELEC, G.R. No. 119694
(Resolution), May 22, 1995)
Case No. 8
SECOND DIVISION
[G.R. No. 144681. June 21, 2004.]
DECISION
TINGA, J p:
This petition for review under Rule 45 of the 1997 Rules of Civil
Procedure seeks to nullify the Decision, 1 dated May 16, 2000, of the
Court of Appeals in CA-G.R. SP No. 37283. The appellate court affirmed
the judgment 2 dated December 19, 1994, of the Regional Trial Court
(RTC) of Manila, Branch 52, in Civil Case No. 93-66530. The trial court
allowed the respondents to take their physician's oath and to register as
duly licensed physicians. Equally challenged is
the Resolution 3 promulgated on August 25, 2000 of the Court of Appeals,
denying petitioners' Motion for Reconsideration.
The facts of this case are as follows:
The respondents are all graduates of the Fatima College of Medicine,
Valenzuela City, Metro Manila. They passed the Physician Licensure
Examination conducted in February 1993 by the Board of Medicine
(Board). Petitioner Professional Regulation Commission (PRC) then
released their names as successful examinees in the medical licensure
examination.
Shortly thereafter, the Board observed that the grades of the seventy-nine
successful examinees from Fatima College in the two most difficult
subjects in the medical licensure exam, Biochemistry (Bio-Chem) and
Obstetrics and Gynecology (OB-Gyne), were unusually and exceptionally
high. Eleven Fatima examinees scored 100% in Bio-Chem and ten got
100% in OB-Gyne, another eleven got 99% in Bio-Chem, and twenty-one
scored 99% in OB-Gyne. The Board also observed that many of those who
passed from Fatima got marks of 95% or better in both subjects, and no
one got a mark lower than 90%. A comparison of the performances of the
candidates from other schools was made. The Board observed that
strangely, the unusually high ratings were true only for Fatima College
examinees. It was a record-breaking phenomenon in the history of the
Physician Licensure Examination.
On June 7, 1993, the Board issued Resolution No. 19, withholding the
registration as physicians of all the examinees from the Fatima College of
Medicine. 4 The PRC asked the National Bureau of Investigation (NBI) to
investigate whether any anomaly or irregularity marred the February 1993
Physician Licensure Examination.
Prior to the NBI investigation, the Board requested Fr. Bienvenido F.
Nebres, S.J., an expert mathematician and authority in statistics, and later
president of the Ateneo de Manila University, to conduct a statistical
analysis of the results in Bio-Chem and Ob-Gyne of the said examination.
On June 10, 1993, Fr. Nebres submitted his report. He reported that a
comparison of the scores in Bio-Chem and Ob-Gyne, of the Fatima
College examinees with those of examinees from De La Salle University
and Perpetual Help College of Medicine showed that the scores of Fatima
College examinees were not only incredibly high but unusually clustered
close to each other. He concluded that there must be some unusual reason
creating the clustering of scores in the two subjects. It must be a cause
"strong enough to eliminate the normal variations that one should expect
from the examinees [of Fatima College] in terms of talent, effort, energy,
etc." 5
For its part, the NBI found that "the questionable passing rate of Fatima
examinees in the [1993] Physician Examination leads to the conclusion
that the Fatima examinees gained early access to the test questions." 6
On July 5, 1993, respondents Arlene V. De Guzman, Violeta V. Meneses,
Celerina S. Navarro, Jose Ramoncito P. Navarro, Arnel V. Herrera, and
Geraldine Elizabeth M. Pagilagan (Arlene V. De Guzman et al., for
brevity) filed a special civil action for mandamus, with prayer for
preliminary mandatory injunction docketed as Civil Case No. 93-66530
with the Regional Trial Court (RTC) of Manila, Branch 52. Their petition
was adopted by the other respondents as intervenors.
Meanwhile, the Board issued Resolution No. 26, dated July 21, 1993,
charging respondents with "immorality, dishonest conduct, fraud, and
deceit" in connection with the Bio-Chem and Ob-Gyne examinations. It
recommended that the test results of the Fatima examinees be nullified.
The case was docketed as Adm. Case No. 1687 by the PRC.
On July 28, 1993, the RTC issued an Order in Civil Case No. 93-66530
granting the preliminary mandatory injunction sought by the respondents.
It ordered the petitioners to administer the physician's oath to Arlene V. De
Guzman et al., and enter their names in the rolls of the PRC.
The petitioners then filed a special civil action for certiorari with the
Court of Appeals to set aside the mandatory injunctive writ, docketed as
CA-G.R. SP No. 31701.
On October 21, 1993, the appellate court decided CA-G.R. SP No. 31701,
with the dispositive portion of the Decision ordaining as follows:
WHEREFORE, this petition is GRANTED. Accordingly,
the writ of preliminary mandatory injunction issued by
the lower court against petitioners is hereby nullified and
set aside.
SO ORDERED. 7
Arlene V. de Guzman, et al., then elevated the foregoing Decision to this
Court in G.R. No. 112315. In our Resolution dated May 23, 1994, we
denied the petition for failure to show reversible error on the part of the
appellate court. DcCEHI
Meanwhile, on November 22, 1993, during the pendency of the instant
petition, the pre-trial conference in Civil Case No. 93-66530 was held.
Then, the parties, agreed to reduce the testimonies of their respective
witnesses to sworn questions-and-answers. This was without prejudice to
cross-examination by the opposing counsel.
On December 13, 1993, petitioners' counsel failed to appear at the trial in
the mistaken belief that the trial was set for December 15. The trial court
then ruled that petitioners waived their right to cross-examine the
witnesses.
On January 27, 1994, counsel for petitioners filed a Manifestation and
Motion stating the reasons for her non-appearance and praying that the
cross-examination of the witnesses for the opposing parties be reset. The
trial court denied the motion for lack of notice to adverse counsel. It also
denied the Motion for Reconsideration that followed on the ground that
adverse counsel was notified less than three (3) days prior to the hearing.
Meanwhile, to prevent the PRC and the Board from proceeding with Adm.
Case No. 1687, the respondents herein moved for the issuance of a
restraining order, which the lower court granted in its Order dated April 4,
1994.
The petitioners then filed with this Court a petition for certiorari docketed
as G.R. No. 115704, to annul the Orders of the trial court dated November
13, 1993, February 28, 1994, and April 4, 1994. We referred the petition to
the Court of Appeals where it was docketed as CA-G.R. SP No. 34506.
On August 31, 1994, the appellate court decided CA-G.R. SP No. 34506
as follows:
WHEREFORE, the present petition for certiorari with
prayer for temporary restraining order/preliminary
injunction is GRANTED and the Orders of December 13,
1993, February 7, 1994, February 28, 1994, and April 4,
1994 of the RTC-Manila, Branch 52, and all further
proceedings taken by it in Special Civil Action No. 93-
66530 are hereby DECLARED NULL and VOID. The
said RTC-Manila is ordered to allow petitioners' counsel
to cross-examine the respondents' witnesses, to allow
petitioners to present their evidence in due course of trial,
and thereafter to decide the case on the merits on the
basis of the evidence of the parties. Costs against
respondents.
IT IS SO ORDERED. 8
The trial was then set and notices were sent to the parties.
A day before the first hearing, on September 22, 1994, the petitioners filed
an Urgent Ex-Parte Manifestation and Motion praying for the partial
reconsideration of the appellate court's decision in CA-G.R. SP No. 34506,
and for the outright dismissal of Civil Case No. 93-66530. The petitioners
asked for the suspension of the proceedings.
In its Order dated September 23, 1994, the trial court granted the aforesaid
motion, cancelled the scheduled hearing dates, and reset the proceedings
to October 21 and 28, 1994.
Meanwhile, on October 25, 1994, the Court of Appeals denied the partial
motion for reconsideration in CA-G.R. SP No. 34506. Thus, petitioners
filed with the Supreme Court a petition for review docketed as G.R. No.
117817, entitled Professional Regulation Commission, et al. v. Court of
Appeals, et al.
On November 11, 1994, counsel for the petitioners failed to appear at the
trial of Civil Case No. 93-66530. Upon motion of the respondents herein,
the trial court ruled that herein petitioners waived their right to cross-
examine the herein respondents. Trial was reset to November 28, 1994.
On November 25, 1994, petitioners' counsel moved for the inhibition of
the trial court judge for alleged partiality. On November 28, 1994, the day
the Motion to Inhibit was to be heard, petitioners failed to appear. Thus,
the trial court denied the Motion to Inhibit and declared Civil Case No. 93-
66530 deemed submitted for decision.
On December 19, 1994, the trial court handed down its judgment in Civil
Case No. 93-66530, the fallo of which reads:
WHEREFORE, judgment is rendered ordering the
respondents to allow the petitioners and intervenors
(except those with asterisks and footnotes in pages 1 & 2
of this decision) [sic], 9 to take the physician's oath and to
register them as physicians.
It should be made clear that this decision is without
prejudice to any administrative disciplinary action which
may be taken against any of the petitioners for such
causes and in the manner provided by law and consistent
with the requirements of the Constitution as any other
professionals.
No costs.
SO ORDERED. 10
As a result of these developments, petitioners filed with this Court a
petition for review on certiorari docketed as G.R. No. 118437,
entitled Professional Regulation Commission v. Hon.David G. Nitafan,
praying inter alia, that (1) G.R. No. 118437 be consolidated with G.R. No.
117817; (2) the decision of the Court of Appeals dated August 31, 1994 in
CA-G.R. SP No. 34506 be nullified for its failure to decree the dismissal
of Civil Case No. 93-66530, and in the alternative, to set aside the decision
of the trial court in Civil Case No. 93-66530, order the trial court judge to
inhibit himself, and Civil Case No. 93-66530 be re-raffled to another
branch.
On December 26, 1994, the petitioners herein filed their Notice of
Appeal 11 in Civil Case No. 93-66530, thereby elevating the case to the
Court of Appeals, where it was docketed as CA-G.R. SP No. 37283.
In our Resolution of June 7, 1995, G.R. No. 118437 was consolidated with
G.R. No. 117817.
On July 9, 1998, we disposed of G.R. Nos. 117817 and 118437 in this
wise:
WHEREFORE, the petition in G.R. No. 117817 is
DISMISSED for being moot. The petition in G.R. No.
118437 is likewise DISMISSED on the ground that there
is a pending appeal before the Court of Appeals. Assistant
Solicitor General Amparo M. Cabotaje-Tang is advised to
be more circumspect in her dealings with the courts as a
repetition of the same or similar acts will be dealt with
accordingly.
SO ORDERED. 12
While CA-G.R. SP No. 37283 was awaiting disposition by the appellate
court, Arnel V. Herrera, one of the original petitioners in Civil Case No.
93-66530, joined by twenty-seven intervenors, to wit: Fernando F.
Mandapat, Ophelia C. Hidalgo, Bernadette T. Mendoza, Ruby B. Lantin-
Tan, Fernando T. Cruz, Marissa A. Regodon, Ma. Eloisa Q. Mallari-
Largoza, Cheryl R. Triguero, Joseph A. Jao, Bernadette H. Cabuhat,
Evelyn S. Acosta-Cabanes, Laura M. Santos, Maritel M. Echiverri,
Bernadette C. Escusa, Carlosito C. Domingo, Alicia S. Lizano, Elnora R.
Raqueno-Rabaino, Saibzur N. Edding, Derileen D. Dorado-Edding, Robert
B. Sanchez, Maria Rosario L. Leonor-Lacandula, Geraldine Elizabeth M.
Pagilagan-Palma, Margarita Belinda L. Vicencio-Gamilla, Herminigilda E.
Conejos, Leuvina P. Chico-Paguio, Elcin C. Arriola-Ocampo, and Jose
Ramoncito P. Navarro, manifested that they were no longer interested in
proceeding with the case and moved for its dismissal. A similar
manifestation and motion was later filed by intervenors Mary Jean I.
Yeban-Merlan, Michael L. Serrano, Norma G. Lafavilla, Arnulfo A.
Salvador, Belinda C. Rabara, Yolanda P. Unica, Dayminda G. Bontuyan,
Clarissa B. Baclig, Ma. Luisa S. Gutierrez, Rhoneil R. Deveraturda, Aleli
A. Gollayan, Evelyn C. Cundangan, Frederick D. Francisco, Violeta V.
Meneses, Melita J. Caedo, Clarisa SJ. Nicolas, Federico L. Castillo,
Karangalan D. Serrano, Danilo A. Villaver, Grace E. Uy, Lydia C. Chan,
and Melvin M. Usita. The Court of Appeals ruled that its decision in CA-
G.R. SP No. 37283 would not apply to them.
On May 16, 2000, the Court of Appeals decided CA-G.R. SP No. 37283,
with the following fallo, to wit:
WHEREFORE, finding no reversible error in the decision
appealed from, We hereby AFFIRM the same and
DISMISS the instant appeal.
No pronouncement as to costs.
SO ORDERED. 13
In sustaining the trial court's decision, the appellate court ratiocinated that
the respondents complied with all the statutory requirements for admission
into the licensure examination for physicians in February 1993. They all
passed the said examination. Having fulfilled the requirements of Republic
Act No. 2382, 14 they should be allowed to take their oaths as physicians
and be registered in the rolls of the PRC. aSDHCT
Hence, this petition raising the following issues:
I
WHETHER OR NOT RESPONDENTS HAVE A VALID
CAUSE OF ACTION FOR MANDAMUS AGAINST
PETITIONERS IN THE LIGHT OF THE
RESOLUTION OF THIS HONORABLE COURT IN
G.R. NO. 112315 AFFIRMING THE COURT OF
APPEALS' DECISION DECLARING THAT IF EVER
THERE IS SOME DOUBT AS TO THE MORAL
FITNESS OF EXAMINEES, THE ISSUANCE OF
LICENSE TO PRACTICE MEDICINE IS NOT
AUTOMATICALLY GRANTED TO THE
SUCCESSFUL EXAMINEES.
II
WHETHER OR NOT THE PETITION FOR
MANDAMUS COULD PROCEED DESPITE THE
PENDENCY OF ADMINISTRATIVE CASE NO. 1687,
WHICH WAS PRECISELY LODGED TO DETERMINE
THE MORAL FITNESS OF RESPONDENTS TO
BECOME DOCTORS. 15
To our mind, the only issue is: Did the Court of Appeals commit a
reversible error of law in sustaining the judgment of the trial court that
respondents are entitled to a writ of mandamus?
The petitioners submit that a writ of mandamus will not lie in this case.
They point out that for a writ of mandamus to issue, the applicant must
have a well-defined, clear and certain legal right to the thing demanded
and it is the duty of the respondent to perform the act required. Thus,
mandamus may be availed of only when the duty sought to be performed
is a ministerial and not a discretionary one. The petitioners argue that the
appellate court's decision in CA-G.R. SP No. 37283 upholding the
decision of the trial court in Civil Case No. 93-66530 overlooked its own
pronouncement in CA-G.R. SP No. 31701. The Court of Appeals held in
CA-G.R. SP No. 31701 that the issuance of a license to engage in the
practice of medicine becomes discretionary on the PRC if there exists
some doubt that the successful examinee has not fully met the
requirements of the law. The petitioners stress that this Court's Resolution
dated May 24, 1994 in G.R. No. 112315 held that there was no showing
"that the Court of Appeals had committed any reversible error in rendering
the questioned judgment" in CA-G.R. SP No. 31701. The petitioners point
out that our Resolution in G.R. No. 112315 has long become final and
executory.
Respondents counter that having passed the 1993 licensure examinations
for physicians, the petitioners have the obligation to administer to them the
oath as physicians and to issue their certificates of registration as
physicians pursuant to Section 20 16 of Rep. Act No. 2382. The Court of
Appeals in CA-G.R. SP No. 37283, found that respondents complied with
all the requirements of Rep. Act No. 2382. Furthermore, respondents were
admitted by the Medical Board to the licensure examinations and had
passed the same. Hence, pursuant to Section 20 of Rep. Act No. 2382, the
petitioners had the obligation to administer their oaths as physicians and
register them.
Mandamus is a command issuing from a court of competent jurisdiction,
in the name of the state or the sovereign, directed to some inferior court,
tribunal, or board, or to some corporation or person requiring the
performance of a particular duty therein specified, which duty results from
the official station of the party to whom the writ is directed, or from
operation of law. 17 Section 3 of Rule 65 18 of the 1997 Rules of Civil
Procedure outlines two situations when a writ of mandamus may issue,
when any tribunal, corporation, board, officer or person unlawfully (1)
neglects the performance of an act which the law specifically enjoins as a
duty resulting from an office, trust, or station; or (2) excludes another from
the use and enjoyment of a right or office to which the other is entitled.
We shall discuss the issues successively.
1. On The Existence of a Duty of the Board of Medicine To Issue
Certificates of Registration as Physicians under Rep. Act No. 2382.
For mandamus to prosper, there must be a showing that the officer, board,
or official concerned, has a clear legal duty, not involving
discretion. 19 Moreover, there must be statutory authority for the
performance of the act, 20 and the performance of the duty has been
refused. 21 Thus, it must be pertinently asked now: Did petitioners have
the duty to administer the Hippocratic Oath and register respondents as
physicians under the Medical Act of 1959?
As found by the Court of Appeals, on which we agree on the basis of the
records:
It bears emphasizing herein that petitioner-appellees and
intervenor-appellees have fully complied with all the
statutory requirements for admission into the licensure
examinations for physicians conducted and administered
by the respondent-appellants on February 12, 14, 20 and
21, 1993. Stress, too, must be made of the fact that all of
them successfully passed the same examinations. 22
The crucial query now is whether the Court of Appeals erred in
concluding that petitioners should allow the respondents to take their
oaths as physicians and register them, steps which would enable
respondents to practice the medical profession 23 pursuant to Section
20 of the Medical Act of 1959?
FIRST DIVISION
[G.R. No. 120095. August 5, 1996.]
DECISION
KAPUNAN, J p:
This limits of government regulation under the State's police power are
once again at the vortex of the instant controversy. Assailed is the
government's power to control deployment of female entertainers to Japan
by requiring an Artist Record Book (ARB) as a precondition to the
processing by the POEA of any contract for overseas employment. By
contending that the right to overseas employment is a property right within
the meaning of the Constitution, petitioners vigorously aver that
deprivation thereof allegedly through the onerous requirement of an ARB
violates the due process clause and constitutes an invalid exercise of the
police power.
The factual antecedents are undisputed.
Following the much-publicized death of Maricris Sioson in 1991, former
President Corazon C. Aquino ordered a total ban against the deployment
of performing artists to Japan and other foreign destinations. The ban was,
however, rescinded after leaders of the overseas employment industry
promised to extend full support for a program aimed at removing kinks in
the system of deployment. In its place, the government, through the
Secretary of Labor and Employment, subsequently issued Department
Order No. 28 creating the Entertainment Industry Advisory Council
(EIAC). which was tasked with issuing guidelines on the training, testing
certification and deployment of performing artists abroad.
Pursuant to the EIAC's recommendations, 1 the Secretary of Labor, on
January 6, 1994, issued Department Order No. 3 establishing various
procedures and requirements for screening performing artists under a new
system of training, testing, certification and deployment of the former.
Performing artists successfully hurdling the test, training and certification
requirement were to be issued an Artist's Record Book (ARB), a necessary
prerequisite to processing of any contract of employment by the POEA.
Upon request of the industry, implementation of the process, originally
scheduled for April 1, 1994, was moved to October 1, 1994.
Thereafter, the Department of Labor, following the EIAC's
recommendation, issued a series of orders fine-tuning and implementing
the new system. Prominent among these orders were the following
issuances:
1. Department Order No. 3-A, providing for additional
guidelines on the training, testing, certification and
deployment of performing artists.
2. Department Order No. 3-B, pertaining to the Artist
Record Book (ARB) requirement, which could be
processed only after the artist could show proof of
academic and skills training and has passed the required
tests.
3. Department Order No. 3-E, providing the minimum
salary a performing artist ought to receive (not less than
US$600.00 for those bound for Japan) and the authorized
deductions therefrom.
4. Department Order No. 3-F, providing for the guidelines
on the issuance and use of the ARB by returning
performing artists who, unlike new artists, shall only
undergo a Special Orientation Program (shorter than the
basic program) although they must pass the academic
test.
In Civil No. 95-72750, the Federation of Entertainment Talent Managers
of the Philippines (FETMOP), on January 27, 1995 filed a class suit
assailing these department orders, principally contending that said orders
1) violated the constitutional right to travel; 2) abridged existing contracts
for employment; and 3) deprived individual artists of their licenses
without due process of law. FETMOP, likewise, averred that the issuance
of the Artist Record Book (ARB) was discriminatory and illegal and "in
gross violation of the constitutional right . . . to life liberty and property."
Said Federation consequently prayed for the issuance of a writ of
preliminary injunction against the aforestated orders.
On February 2, 1992, JMM Promotion and Management, Inc. and Kary
International, Inc., herein petitioners, filed a Motion for Intervention in
said civil case, which was granted by the trial court in an Order dated 15
February, 1995.
However, on February 21, 1995, the trial court issued an Order denying
petitioners' prayer for a writ of preliminary injunction and dismissed the
complaint.
On appeal from the trial court's Order, respondent court, in CA G.R. SP
No. 36713 dismissed the same. Tracing the circumstances which led to the
issuance of the ARB requirement and the assailed Department Order,
respondent court concluded that the issuances constituted a valid exercise
by the state of the police power.
We agree.
The latin maxim salus populi est suprema lex embodies the character of
the entire spectrum of public laws aimed at promoting the general welfare
of the people under the State's police power. As an inherent attribute of
sovereignty which virtually "extends to all public needs," 2 this "least
limitable" 3 of governmental powers grants a wide panoply of instruments
through which the state, as parens patriae gives effect to a host of its
regulatory powers.
Describing the nature and scope of the police power, Justice Malcolm, in
the early case of Rubi v. Provincial Board of Mindoro 4 wrote:
"The police power of the State," one court has said . . . 'is
a power coextensive with self-protection, and is not
inaptly termed 'the law of overruling necessity.' It may be
said to be that inherent and plenary power in the state
which enables it to prohibit all things hurtful to the
comfort, safety and welfare of society." Carried onward
by the current of legislature, the judiciary rarely attempts
to dam the onrushing power of legislative discretion,
provided the purposes of the law do not go beyond the
great principles that mean security for the public welfare
or do not arbitrarily interfere with the right of the
individual." 5
Thus, police power concerns government enactments which precisely
interfere with personal liberty or property in order to promote the general
welfare or the common good. As the assailed Department Order enjoys a
presumed validity, it follows that the burden rests upon petitioners to
demonstrate that the said order, particularly, its ARB requirement, does not
enhance the public welfare or was exercised arbitrarily or unreasonably.
A through review of the facts and circumstances leading to the issuance of
the assailed orders compels us to rule that the Artist Record Book
requirement and the questioned Department Order related to its issuance
were issued by the Secretary of Labor pursuant to a valid exercise of the
police power.
In 1984, the Philippines emerged as the largest labor sending country in
Asia dwarfing the labor export of countries with mammoth populations
such as India and China. According to the National Statistics Office,
this diaspora was augmented annually by over 450,000 documented and
clandestine or illegal (undocumented) workers who left the country for
various destinations abroad, lured by higher salaries, better work
opportunities and sometimes better living conditions.
Of the hundreds of thousands of workers who left the country for greener
pastures in the last few years, women composed slightly close to half of
those deployed, constituting 47% between 1987-1991, exceeding this
proportion (58%) by the end of 1991, 6 the year former President Aquino
instituted the ban on deployment of performing artists to Japan and other
countries as a result of the gruesome death of Filipino entertainer Maricris
Sioson.
It was during the same period that this Court took judicial notice not only
of the trend, but also of the fact that most of our women, a large number
employed as domestic helpers and entertainers, worked under exploitative
conditions "marked by physical and personal abuse." 7 Even then, we
noted that "[t]he sordid tales of maltreatment suffered by migrant Filipina
workers, even rape and various forms of torture, confirmed by testimonies
of returning workers" compelled "urgent government action." 8
Pursuant to the alarming number of reports that a significant number of
Filipina performing artists ended up as prostitutes abroad (many of whom
were beaten, drugged and forced into prostitution), and following the
deaths of a number of these women, the government began instituting
measures aimed at deploying only those individuals who met set standards
which would qualify them as legitimate performing artists. In spite of
these measures, however, a number of our countrymen have nonetheless
fallen victim to unscrupulous recruiters, ending up as virtual slaves
controlled by foreign crime syndicates and forced into jobs other than
those indicated in their employment contracts. Worse, some of our women
have been forced into prostitution.
Thus, after a number of inadequate and failed accreditation schemes, the
Secretary of Labor issued on August 16, 1993, D.O. No. 28, establishing
the Entertainment Industry Advisory Council (EIAC), the policy advisory
body of DOLE on entertainment industry matters. 9 Acting on the
recommendations of the said body, the Secretary of Labor, on January 6,
1994, issued the assailed orders. These orders embodied EIAC's
Resolution No. 1, which called for guidelines on screening, testing and
accrediting performing overseas Filipino artists. Significantly, as the
respondent court noted, petitioners were duly represented in the
EIAC, 10 which gave the recommendations on which the ARB and other
requirements were based.
Clearly, the welfare of Filipino performing artists, particularly the women
was paramount in the issuance of Department Order No. 3. Short of a total
and absolute ban against the deployment of performing artists to "high-
risk" destinations, a measure which would only drive recruitment further
underground, the new scheme at the very least rationalizes the method of
screening performing artists by requiring reasonable educational and
artistic skills from them and limits deployment to only those individuals
adequately prepared for the unpredictable demands of employment as
artists abroad. It cannot be gainsaid that this scheme at least lessens the
room for exploitation by unscrupulous individuals and agencies.
Moreover, here or abroad, selection of performing artists is usually
accomplished by auditions, where those deemed unfit are usually weeded
out through a process which is inherently subjective and vulnerable to bias
and differences in taste. The ARB requirement goes one step further,
however, attempting to minimize the subjectivity of the process by
defining minimum skills required from entertainers and performing artists.
As the Solicitor General observed, this should be easily met by
experienced artists possessing merely basic skills. The tests are aimed at
segregating real artists or performers from those passing themselves off as
such, eager to accept any available job and therefore exposing themselves
to possible exploitation.
As to the other provisions of Department Order No. 3 questioned by
petitioners, we see nothing wrong with the requirement for document and
booking confirmation (D.O. 3-C), a minimum salary scale (D.O. 3-E), or
the requirement for registration of returning performers. The requirement
for a venue certificate or other documents evidencing the place and nature
of work allows the government closer monitoring of foreign employers
and helps keep our entertainers away from prostitution fronts and other
worksites associated with unsavory, immoral, illegal or exploitative
practices. Parenthetically, none of these issuances appear to us, by any
stretch of the imagination, even remotely unreasonable or arbitrary. They
address a felt need of according greater protection for an oft-exploited
segment of our OCW's. They respond to the industry's demand for clearer
and more practicable rules and guidelines. Many of these provisions were
fleshed out following recommendations by, and after consultations with,
the affected sectors and non-government organizations. On the whole, they
are aimed at enhancing the safety and security of entertainers and artists
bound for Japan and other destinations, without stifling the industry's
concerns for expansion and growth.
In any event, apart from the State's police power, the Constitution itself
mandates government to extend the fullest protection to our overseas
workers. The basic constitutional statement on labor, embodied in Section
18 of Article II of the Constitution provides: