CITATION: G.R No. 187167               August 16, 2011 zones (i.e.
zones (i.e., the territorial waters [12 nautical miles from the baselines],
Prof. Merlin M. Magallona, Akbayan Party-List Rep. Risa Hontiveros, Prof. Harry C.
Roque, Jr., and University of the Philippines College of Law Students, Alithea
Barbara Acas, Voltaire Alferes, Czarina May Altez, Francis Alvin Asilo, Sheryl Balot,
Ruby Amor Barraca, Jose Javier Bautista, Romina Bernardo, Valerie Pagasa
Buenaventura, Edan Marri Cañete, Vann Allen Dela Cruz, Rene Delorino, Paulyn May
Duman, Sharon Escoto, Rodrigo Fajardo III, Girlie Ferrer, Raoulle Osen Ferrer, Carla
Regina Grepo, Anna Marie Cecilia Go, Irish Kay Kalaw, Mary Ann Joy Lee, Maria
Luisa Manalaysay, Miguel Rafael Musngi, Michael Ocampo, Jaklyn Hanna Pineda,
William Ragamat, Maricar Ramos, Enrik Fort Revillas, James Mark Terry Ridon,
Johann Frantz Rivera IV, Christian Rivero, Dianne Marie Roa, Nicholas Santizo,
Melissa Christina Santos, Cristine Mae Tabing, Vanessa Anne Torno, Maria Ester
Vanguardia, and Marcelino Veloso III, petitioners,  community of the scope of the maritime space and submarine areas within
vs.
Hon. Eduardo Ermita, in his capacity as Executive Secretary, Hon. Alberto Romulo, in
his capacity as Secretary of the Department o Foreign Affairs, Hon. Rolando Andaya,
in his capacity as Secretary of the Department of Budget and Management, Hon.
Diony Ventura, in his Capacity as Administrator of the National Mapping & Resource
Information Authority, And Hon. Hilario Davide, Jr., in his capacity as Representative
of the Permanent Mission of the Republic of the Philippines to the United Nations,
respondents.
FACTS:
1. In 1961, Congress passed Republic Act No. 3046 (RA 3046)2 demarcating
the maritime baselines of the Philippines as an archipelagic State.
2. This law followed the framing of the Convention on the Territorial Sea and
the Contiguous Zone in 1958 (UNCLOS I), codifying, among others, the
sovereign right of States parties over their "territorial sea," the breadth of
which, however, was left undetermined. Attempts to fill this void during
the second round of negotiations in Geneva in 1960 (UNCLOS II) proved
futile.
3. March 2009, Congress amended RA 3046 by enacting RA 9522 to make RA
3046 compliant with the terms of the United Nations Convention on the
Law of the Sea (UNCLOS III) prescribing the water-land ratio, length, and
contour of baselines of archipelagic States like the Philippines7 and sets
the deadline for the filing of application for the extended continental shelf.
4. RA 9522 shortened one baseline, optimized the location of some
basepoints around the Philippine archipelago and classified adjacent
territories, namely, the Kalayaan Island Group (KIG) and the Scarborough
Shoal, as "regimes of islands" whose islands generate their own applicable
maritime zones.
5. UNCLOS III has nothing to do with the acquisition (or loss) of territory. It is
a multilateral treaty regulating, among others, sea-use rights over maritime
contiguous zone [24 nautical miles from the baselines], exclusive economic
zone [200 nautical miles from the baselines]), and continental shelves that
UNCLOS III delimits.
6. UNCLOS III was the culmination of decades-long negotiations among
United Nations members to codify norms regulating the conduct of States
in the world’s oceans and submarine areas, recognizing coastal and
archipelagic States’ graduated authority over a limited span of waters and
submarine lands along their coasts.
7. Baselines laws are nothing but statutory mechanisms for UNCLOS III States
parties to delimit with precision the extent of their maritime zones and
continental shelves. In turn, this gives notice to the rest of the international
which States parties exercise treaty-based rights, namely, the exercise of
sovereignty over territorial waters (Article 2), the jurisdiction to enforce
customs, fiscal, immigration, and sanitation laws in the contiguous zone
(Article 33), and the right to exploit the living and non-living resources in
the exclusive economic zone (Article 56) and continental shelf (Article 77).
8. Under traditional international law typology, States acquire (or conversely,
lose) territory through occupation, accretion, cession and prescription,25
not by executing multilateral treaties on the regulations of sea-use rights
or enacting statutes to comply with the treaty’s terms to delimit maritime
zones and continental shelves. Territorial claims to land features are
outside UNCLOS III, and are instead governed by the rules on general
international law.
9. Under RA 3046, as under RA 9522, the KIG and the Scarborough Shoal lie
outside of the baselines drawn around the Philippine archipelago. This
undeniable cartographic fact takes the wind out of petitioners’ argument
branding RA 9522 as a statutory renunciation of the Philippines’ claim over
the KIG, assuming that baselines are relevant for this purpose.
10. Had Congress in RA 9522 enclosed the KIG and the Scarborough Shoal as
part of the Philippine archipelago, adverse legal effects would have
ensued. The Philippines would have committed a breach of two provisions
of UNCLOS III. First, Article 47 (3) of UNCLOS III requires that "[t]he drawing
of such baselines shall not depart to any appreciable extent from the
general configuration of the archipelago." Second, Article 47 (2) of UNCLOS
III requires that "the length of the baselines shall not exceed 100 nautical
miles," save for three per cent (3%) of the total number of baselines which
can reach up to 125 nautical miles.
11. Far from surrendering the Philippines’ claim over the KIG and the
Scarborough Shoal, Congress’ decision to classify the KIG and the
Scarborough Shoal as "‘Regime[s] of Islands’ under the Republic of the
Philippines consistent with Article 121"36 of UNCLOS III manifests the
Philippine State’s responsible observance of its pacta sunt servanda
 obligation under UNCLOS III. Under Article 121 of UNCLOS III, any 2. Does RA 9522 opens the country’s waters landward of the baselines to
"naturally formed area of land, surrounded by water, which is above water maritime passage by all vessels and aircrafts, undermining Philippine
at high tide," such as portions of the KIG, qualifies under the category of sovereignty and national security, contravening the country’s nuclear-free
"regime of islands," whose islands generate their own applicable maritime policy, and damaging marine resources, in violation of relevant
zones. constitutional provisions?
12. SABAH: The definition of the baselines of the territorial sea of the
Philippine Archipelago as provided in this Act is without prejudice to the 3. Is RA 9522 unconstitutional?
delineation of the baselines of the territorial sea around the territory of
Sabah, situated in North Borneo, over which the Republic of the Philippines HOLDING:
has acquired dominion and sovereignty.
13. Our present state of jurisprudence considers the provisions in Article II as 1. All of the aforementioned cases are hereby dismissed.
mere legislative guides, which, absent enabling legislation, "do not embody
judicially enforceable constitutional rights x x x." Article II provisions serve
as guides in formulating and interpreting implementing legislation, as well
as in interpreting executory provisions of the Constitution. Although Oposa
v. Factoran treated the right to a healthful and balanced ecology under
Section 16 of Article II as an exception, the present petition lacks factual
basis to substantiate the claimed constitutional violation. The other
provisions petitioners cite, relating to the protection of marine wealth
(Article XII, Section 2, paragraph 251 ) and subsistence fishermen (Article
XIII, Section 752 ), are not violated by RA 9522.
14. Petitioners asserted that based on the permissive text of UNCLOS III,
Congress was not bound to pass RA 9522. The court has looked at the
relevant provision of UNCLOS III55 and we find petitioners’ reading
plausible. Nevertheless, the prerogative of choosing this option belongs to
Congress, not to this Court. Moreover, the luxury of choosing this option
comes at a very steep price. Absent an UNCLOS III compliant baselines law,
an archipelagic State like the Philippines will find itself devoid of
internationally acceptable baselines from where the breadth of its
maritime zones and continental shelf is measured. This is recipe for a two-
fronted disaster: first, it sends an open invitation to the seafaring powers
to freely enter and exploit the resources in the waters and submarine
areas around our archipelago; and second, it weakens the country’s case in
any international dispute over Philippine maritime space.

ISSUE:

1. Does the RA 9522 reduces Philippine maritime territory, and logically, the
reach of the Philippine state’s sovereign power, in violation of Article 1 of
the 1987 Constitution, embodying the terms of the Treaty of Paris and
ancillary treaties?
ANNEX 8. The baselines drawn in accordance with this article shall be shown on charts of a
scale or scales adequate for ascertaining their position.
1. UNCLOS III
Alternatively, lists of geographical coordinates of points, specifying the geodetic
Article 47 datum, may be substituted.

9. The archipelagic State shall give due publicity to such charts or lists of
Archipelagic baselines geographical coordinates and shall deposit a copy of each such chart or list with the
Secretary-General of the United Nations.
1. An archipelagic State may draw straight archipelagic baselines joining the
outermost points of the outermost islands and drying reefs of the archipelago Article 48
provided that within such baselines are included the main islands and an area in
Measurement of the breadth of the territorial sea, the contiguous zone, the
which the ratio of the area of the water to the area of the land, including atolls, is
exclusive economic zone and the continental shelf
between 1 to 1 and 9 to 1.
The breadth of the territorial sea, the contiguous zone, the exclusive economic zone
2. The length of such baselines shall not exceed 100 nautical miles, except that up
and the continental shelf shall be measured from archipelagic baselines drawn in
to 3 per cent of the total number of baselines enclosing any archipelago may exceed
accordance with article 47.
that length, up to a maximum length of 125 nautical miles.

3. The drawing of such baselines shall not depart to any appreciable extent from the
general configuration of the archipelago.

4. Such baselines shall not be drawn to and from low-tide elevations, unless
lighthouses or similar installations which are permanently above sea level have
been built on them or where a low-tide elevation is situated wholly or partly at a
distance not exceeding the breadth of the territorial sea from the nearest island.

5. The system of such baselines shall not be applied by an archipelagic State in such
a manner as to cut off from the high seas or the exclusive economic zone the
territorial sea of another State.

6. If a part of the archipelagic waters of an archipelagic State lies between two parts
of an immediately adjacent neighbouring State, existing rights and all other
legitimate interests which the latter State has traditionally exercised in such waters
and all rights stipulated by agreement between those States shall continue and be
respected.

7. For the purpose of computing the ratio of water to land under paragraph l, land
areas may include waters lying within the fringing reefs of islands and atolls,
including that part of a steep-sided oceanic plateau which is enclosed or nearly
enclosed by a chain of limestone islands and drying reefs lying on the perimeter of
the plateau.