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Assumin( that the petitions pesent a 8usticiable contoves", #hethe petitione Estada is a Pesident on leave
#hile espondent Ao"o is an Actin( Pesident.
;hethe conviction in the impeachment poceedin(s is a condition pecedent fo the ciminal posecution of
petitione Estada. 2n the ne(ative and on the assumption that petitione is still Pesident, #hethe he is immune
fom ciminal posecution.
7
;hethe the posecution of petitione Estada should be en8oined on the (ound of pe8udicial publicit".
1%/
;e shall discuss the issues in seriatim.
:1et1er or &ot t1e #et%t%o&er %' o&62 te9#or$r%62 ,&$b6e to $ct $' Pre'%/e&t.
;e shall no# tac.le the contention of the petitione that he is meel" tempoail" unable to pefom the
po#es and duties of the pesidenc", and hence is a Pesident on leave. As afoestated, the inabilit" claim is
contained in the Banua" $*, $**1 lette of petitione sent on the same da" to 'enate Pesident Pimentel and
'pea.e ,uentebella.
Petitione postulates that espondent Ao"o as Eice Pesident has no po#e to ad8ud(e the inabilit" of the
petitione to discha(e the po#es and duties of the pesidenc". 1is si(nificant submittal is that XCo&-re'' has
the ultimate authoit" unde the Constitution to detemine #hethe the Pesident is incapable of pefomin( his
functions in the manne povided fo in section 11 of Aticle E22.Y
F+%G
This contention is the ce&ter#%ece o4
#et%t%o&erO' 't$&ce that he is a Pre'%/e&t o& 6e$3e and espondent !rro2o %' o&62 $& !ct%&- Pre'%/e&t.
!& eB$9%&$t%o& o4 'ect%o& 11, !rt%c6e 7 %' %& or/er. 2t povides0
X'EC. 11. ;heneve the Pesident tansmit to the Pesident of the 'enate and the 'pea.e of the 1ouse of
Repesentatives his #itten declaation that he is unable to discha(e the po#es and duties of his office, and until
he tansmits to them a #itten declaation to the conta", such po#es and duties shall be discha(ed b" the
Eice-Pesident as Actin( Pesident.
;heneve a ma8oit" of all the Membes of the Cabinet tansmit to the Pesident of the 'enate and to the 'pea.e
of the 1ouse of Repesentatives thei #itten declaation that the Pesident is unable to discha(e the po#es and
duties of his office, the Eice-Pesident shall immediatel" assume the po#es and duties of the office as Actin(
Pesident.
Theeafte, #hen the Pesident tansmits to the Pesident of the 'enate and to the 'pea.e of the 1ouse of
Repesentatives his #itten declaation that no inabilit" e3ists, he shall eassume the po#es and duties of his
office. Mean#hile, should a ma8oit" of all the Membes of the Cabinet tansmit #ithin five da"s to the Pesident of
the 'enate and to the 'pea.e of the 1ouse of Repesentatives thei #itten declaation that the Pesident is
unable to discha(e the po#es and duties of his office, the Con(ess shall decide the issue. ,o that pupose,
the Con(ess shall convene, if it is not in session, #ithin fot"-ei(ht hous, in accodance #ith its ules and #ithout
need of call.
2f the Con(ess, #ithin ten da"s afte eceipt of the last #itten declaation, o, if not in session #ithin t#elve da"s
afte it is e!uied to assemble, detemines b" a t#o-thids vote of both 1ouses, votin( sepaatel", that the
Pesident is unable to discha(e the po#es and duties of his office, the Eice-Pesident shall act as PesidentI
othe#ise, the Pesident shall continue e3ecisin( the po#es and duties of his office.)
That is the la#. No# the opeative facts0
>1? Petitione, on Banua" $*, $**1, sent the above lette claimin( inabilit" to the 'enate Pesident and
'pea.e of the 1ouseI
>$? <na#ae of the lette, espondent Ao"o too. he oath of office as Pesident on Banua" $*, $**1 at
about 1$0@* p.m.I
>@? "e'#%te rece%#t o4 t1e 6etter, the 1ouse of Repesentative passed on Banua" $A, $**1 Ho,'e
Re'o6,t%o& No. 1)+H
F+&G
O& t1e '$9e /$te, the 1ouse of the Repesentatives passed Ho,'e Re'o6,t%o& No. 1)6
F+/G
#hich states0
1&/
XRE'6=<T26N EDPRE''2N- T1E '<PP6RT 6, T1E 16<'E 6, REPRE'ENTAT2EE' T6 T1E
A''<MPT26N 2NT6 6,,2CE BK E2CE PRE'27ENT -=6R2A MACAPA-A=-ARR6K6 A'
PRE'27ENT 6, T1E REP<B=2C 6, T1E P12=2PP2NE', EDTEN72N- 2T' C6N-RAT<=AT26N'
AN7 EDPRE''2N- 2T' '<PP6RT ,6R 1ER A7M2N2'TRAT26N A' A PARTNER 2N T1E
ATTA2NMENT 6, T1E NAT26NW' -6A=' <N7ER T1E C6N'T2T<T26N
;1EREA', as a conse!uence of the peopleWs loss of confidence on the abilit" of fome Pesident Boseph
E8ecito Estada to effectivel" (oven, the Amed ,oces of the Philippines, the Philippine National Police and
ma8oit" of his cabinet had #ithda#n suppot fom himI
;1EREA', upon authoit" of an en banc esolution of the 'upeme Cout, Eice Pesident -loia Macapa(al-
Ao"o #as s#on in as Pesident of the Philippines on $* Banua" $**1 befoe Chief Bustice 1ilaio -. 7avide,
B.I
;1EREA', immediatel" theeafte, membes of the intenational communit" had e3tended thei eco(nition to
1e E3cellenc", -loia Macapa(al-Ao"o as Pesident of the Republic of the PhilippinesI
;1EREA', 1e E3cellenc", Pesident -loia Macapa(al-Ao"o has espoused a polic" of national healin( and
econciliation #ith 8ustice fo the pupose of national unit" and developmentI
;1EREA', it is a3iomatic that the obli(ations of the (ovenment cannot be achieved if it is divided, thus b"
eason of the constitutional dut" of the 1ouse of Repesentatives as an institution and that of the individual
membes theeof of fealt" to the supeme #ill of the people, the 1ouse of Repesentatives must ensue to the
people a stable, continuin( (ovenment and theefoe must emove all obstacles to the attainment theeofI
;1EREA', it is a concomitant dut" of the 1ouse of Repesentatives to e3et all effots to unif" the nation, to
eliminate factious tension, to heal social and political #ounds, and to be an instument of national econciliation
and solidait" as it is a diect epesentative of the vaious se(ments of the #hole nationI
;1EREA', #ithout suendein( its independence, it is vital fo the attainment of all the foe(oin(, fo the 1ouse
of Repesentatives to e3tend its suppot and collaboation to the administation of 1e E3cellenc", Pesident
-loia Macapa(al-Ao"o, and to be a constuctive patne in nation-buildin(, the national inteest demandin( no
less0 No#, theefoe, be it
Resolved by the Gouse of Representatives" To e3pess its suppot to the assumption into office b" Eice Pesident
-loia Macapa(al-Ao"o as Pesident of the Republic of the Philippines, to e3tend its con(atulations and to
e3pess its suppot fo he administation as a patne in the attainment of the NationWs (oals unde the
Constitution.
Adopted,
>'(d.? ,E=2C2AN6 BE=M6NTE BR.
'pea.e
This Resolution #as adopted b" the 1ouse of Repesentatives on Banua" $A, $**1.
>'(d.? R6BERT6 P. NAJAREN6
'eceta" -enealY
O& Febr,$r2 ), 2**1, the 1ouse of the Repesentatives passed Ho,'e Re'o6,t%o& No. 1)8
F+HG
#hich states0
1&H
XRE'6=<T26N C6N,2RM2N- PRE'27ENT -=6R2A MACAPA-A=-ARR6K6W' N6M2NAT26N 6,
'ENAT6R TE6,2'T6 T. -<2N-6NA, BR. A' E2CE PRE'27ENT 6, T1E REP<B=2C 6, T1E
P12=2PP2NE'
;1EREA', thee is a vacanc" in the 6ffice of the Eice Pesident due to the assumption to the Pesidenc" of Eice
Pesident -loia Macapa(al-Ao"oI
;1EREA', pusuant to 'ection +, Aticle E22 of the Constitution, the Pesident in the event of such vacanc" shall
nominate a Eice Pesident fom amon( the membes of the 'enate and the 1ouse of Repesentatives #ho shall
assume office upon confimation b" a ma8oit" vote of all membes of both 1ouses votin( sepaatel"I
;1EREA', 1e E3cellenc", Pesident -loia Macapa(al-Ao"o has nominated 'enate Minoit" =eade Teofisto
T. -uin(ona B., to the position of Eice Pesident of the Republic of the PhilippinesI
;1EREA', 'enato Teofisto T. -uin(ona B., is a public sevant endo#ed #ith inte(it", competence and
coua(eI #ho has seved the ,ilipino people #ith dedicated esponsibilit" and patiotismI
;1EREA', 'enato Teofisto T. -uin(ona, B. possesses stelin( !ualities of tue statesmanship, havin( seved
the (ovenment in vaious capacities, amon( othes, as 7ele(ate to the Constitutional Convention, Chaiman of
the Commission on Audit, E3ecutive 'eceta", 'eceta" of Bustice, 'enato of the Philippines - !ualities #hich
meit his nomination to the position of Eice Pesident of the Republic0 No#, theefoe, be it
Resolved as it is hereby resolved by the Gouse of Representatives" That the 1ouse of Repesentatives confims
the nomination of 'enato Teofisto T. -uin(ona, B. as the Eice Pesident of the Republic of the Philippines.
Adopted,
>'(d? ,E=2C2AN6 BE=M6NTE BR.
'pea.e
This Resolution #as adopted b" the 1ouse of Repesentatives on ,ebua" /, $**1.
>'(d.? R6BERT6 P. NAJAREN6
'eceta" -enealY
>A? Also, /e'#%te rece%#t o4 #et%t%o&erO' 6etter claimin( inabilit", some tDe63e L12M 9e9ber' o4 t1e
Se&$te si(ned the follo#in(0
XRE'6=<T26N
;1EREA', the ecent tansition in (ovenment offes the nation an oppotunit" fo meanin(ful chan(e and
challen(eI
;1EREA', to attain desied chan(es and ovecome a#esome challen(es the nation needs unit" of pupose and
esolute cohesive esolute >sic? #illI
;1EREA', the 'enate of the Philippines has been the foum fo vital le(islative measues in unit" despite
divesities in pespectivesI
1&+
;1ERE,6RE, #e eco(ni5e and e3pess suppot to the ne# (ovenment of Pesident -loia Macapa(al-Ao"o
and esolve to discha(e ou duties to attain desied chan(es and ovecome the nationWs challen(es.Y
F++G
O& Febr,$r2 ), the Se&$te also passed Se&$te Re'o6,t%o& No. 82
F1**G
#hich states0
XRE'6=<T26N C6N,2RM2N- PRE'27ENT -=6R2A MACAPA-A=-ARR6K6W' N6M2NAT26N 6,
'EN. TE6,2'T6 T. -<2N-6NA, BR. A' E2CE PRE'27ENT 6, T1E REP<B=2C 6, T1E
P12=2PP2NE'
;1EREA', thee is it vacanc" in the 6ffice of the Eice-Pesident due to the assumption to the Pesidenc" of Eice
Pesident -loia Macapa(al-Ao"oI
;1EREA', pusuant to 'ection + Aticle E22 of the Constitution, the Pesident in the event of such vacanc" shall
nominate a Eice Pesident fom amon( the membes of the 'enate and the 1ouse of Repesentatives #ho shall
assume office upon confimation b" a ma8oit" vote of all membes of both 1ouses votin( sepaatel"I
;1EREA', 1e E3cellenc", Pesident -loia Macapa(al-Ao"o has nominated 'enate Minoit" =eade Teofisto
T. -uin(ona, B. to the position of Eice Pesident of the Republic of the PhillippinesI
;1EREA', 'en. Teofisto T. -uin(ona, B. is a public sevant endo#ed #ith inte(it", competence, and coua(eI
#ho has seved the ,ilipino people #ith dedicated esponsibilit" and patiotismI
;1EREA', 'en. Teofisto T. -uin(ona, B. possesses stelin( !ualities of tue statesmanship, havin( seved the
(ovenment in vaious capacities, amon( othes, as 7ele(ate to the Constitutional Convention, Chaiman of the
Commission on Audit, E3ecutive 'eceta", 'eceta" of Bustice. 'enato of the land - #hich !ualities meit his
nomination to the position of Eice Pesident of the Republic0 No#, theefoe, be it
Resolved" as it is hereby resolved" That the 'enate confim the nomination of 'en. Teofisto T. -uin(ona, B. as
Eice Pesident of the Republic of the Philippines.
Adopted,
>'(d.? AO<2=2N6 O. P2MENTE= BR.
Pesident of the 'enate
This Resolution #as adopted b" the 'enate on ,ebua" /, $**1.
>'(d.? =<T-AR76 B. BARB6
'eceta" of the 'enateY
6n the same date, ,ebua" /, the Se&$te li.e#ise passed Se&$te Re'o6,t%o& No. 83
F1*1G
#hich states0
XRE'6=<T26N REC6-N2J2N- T1AT T1E 2MPEAC1MENT C6<RT 2' :.N(8.' 5::,(,5
Resolved" as it is hereby resolved. That the 'enate eco(ni5e that the 2mpeachment Cout is functus officio and
has been teminated.
Resolved" further" That the Bounals of the 2mpeachment Cout of Monda", Banua" 1%, Tuesda", Banua" 1& and
;ednesda", Banua" 1/, $**1 be consideed appoved.
1/*
Resolved" further" That the ecods of the 2mpeachment Cout includin( the Zsecond envelopeW be tansfeed to
the Achives of the 'enate fo pope safe.eepin( and pesevation in accodance #ith the Rules of the
'enate. 7isposition and etieval theeof shall be made onl" upon #itten appoval of the 'enate Pesident.
Resolved" finally. That all paties concened be funished copies of this Resolution.
Adopted,
>'(d.? AO<2=2N6 O. P2MENTE=, BR.
Pesident of the 'enate
This Resolution #as adopted b" the 'enate on ,ebua" /, $**1.
>'(d.? =<T-AR76 B. BARB6
'eceta" of the 'enateY
>%? 6n ,ebua" H, the 'enate also passed Re'o6,t%o& No. 84 Xcetif"in( to the e3istence of a vacanc" in
the 'enate and callin( on the C6ME=EC to fill up such vacanc" thou(h election to be held simultaneousl" #ith
the e(ula election on Ma" 1A, $**1 and the senatoial candidate (anein( the thiteenth >1@
th
? hi(hest numbe
of votes shall seve onl" fo the une3pied tem of 'enato Teofisto T. -uin(ona, B.Y
>&? 0ot1 1o,'e' o4 Co&-re'' stated sendin( b%66' to be '%-&e/ %&to 6$D b" espondent !rro2o
$' Pre'%/e&t.
>/? "e'#%te t1e 6$#'e o4 t%9e and still #ithout an" functionin( Cabinet, #ithout an" eco(nition fom
an" secto of (ovenment, and #ithout an" suppot fom the Amed ,oces of the Philippines and the Philippine
National Police, the petitione continues to claim that his inabilit" to (oven is onl" momenta".
:1$t 6e$#' to t1e e2e 4ro9 t1e'e %rre4,t$b6e 4$ct' %' t1$t bot1 1o,'e' o4 Co&-re'' 1$3e reco-&%5e/
re'#o&/e&t !rro2o $' t1e Pre'%/e&t. 9#6%c%t62 c6e$r %& t1$t reco-&%t%o& %' t1e #re9%'e t1$t t1e %&$b%6%t2 o4
#et%t%o&er E'tr$/$ %' &o 6o&-er te9#or$r2. Co&-re'' 1$' c6e$r62 reFecte/ #et%t%o&erO' c6$%9 o4 %&$b%6%t2.
T1e I,e't%o& %' D1et1er t1%' Co,rt 1$' F,r%'/%ct%o& to re3%eD t1e c6$%9 o4 te9#or$r2 %&$b%6%t2 o4
#et%t%o&er E'tr$/$ and theeafte re3%'e t1e /ec%'%o& o4 bot1 Ho,'e' o4 Co&-re'' eco(ni5in( espondent
Ao"o as Pesident of the Philippines. ,ollo#in( T$S$/$ 3. C,e&co,
F1*$G
#e hold that this Cout cannot e3ecise
its 8udicial po#e fo this is an issue Xin e(ad to #hich full discretionary authority has been dele(ated to the
=e(islative 3 3 3 banch of the (ovenment.Y 6 to use the lan(ua(e in 0$Eer 3'. C$rr,
F1*@G
thee is a Xte3tuall"
demonstable constitutional commitment of the issue to a coodinate political depatment o a lac. of 8udiciall"
discoveable and mana(eable standads fo esolvin( it.Y Cleal", the Cout cannot pass upon petitioneWs claim of
inabilit" to discha(e the po#es and duties of the pesidenc". T1e I,e't%o& %' #o6%t%c$6 %& &$t,re $&/
$//re''e/ 'o6e62 to Co&-re'' b2 co&'t%t,t%o&$6 4%$t. 2t is a political issue #hich cannot be decided b" this
Cout #ithout tans(essin( the pinciple of sepaation of po#es.
2n fine, even if the petitione can pove that he did not esi(n, still, he cannot successfull" claim that he is a
Pesident on leave on the (ound that he is meel" unable to (oven tempoail". That claim has been laid to est
b" Con(ess and the decision that espondent Ao"o is the de *ure Pesident made b" a co-e!ual banch of
(ovenment cannot be evie#ed b" this Cout.
7
:1et1er or &ot t1e #et%t%o&er e&Fo2' %99,&%t2 4ro9 ',%t. !'',9%&- 1e e&Fo2' %99,&%t2, t1e eBte&t o4 t1e %99,&%t2
1/1
Petitione Estada ma.es t#o submissions0 4%r't, the cases filed a(ainst him befoe the espondent
6mbudsman should be pohibited because he has not been convicted in the impeachment poceedin(s a(ainst
himI and 'eco&/, he en8o"s %99,&%t2 fom $66 .inds of suit, #hethe ciminal o civil.
Befoe esolvin( petitioneWs contentions, a evisit of ou le(al histo" on e3ecutive immunit" #ill be most
enli(htenin(. The doctine of e3ecutive immunit" in this 8uisdiction eme(ed $' $ c$'e 6$D. 2n the 191* case
of Forbe', etc. 3'. C1,oco t%$co $&/ Cro''4%e6/,
F1*AG
the espondent Tiaco, a Chinese citi5en, sued petitione ;.
Cameon ,obes, -oveno--eneal of the Philippine 2slands, B.E. 1adin( and C.R. To#bid(e, Chief of Police
and Chief of the 'ecet 'evice of the Cit" of Manila, espectivel", fo dama(es fo alle(edl" conspiin( to depot
him to China. 2n (antin( a #it of pohibition, this Cout, spea.in( thu M. Bustice Bohnson, held0
XThe pinciple of nonliabilit", as heein enunciated, does not mean that the 8udicia" has no authoit" to touch the
acts of the -oveno--enealI that he ma", unde cove of his office, do #hat he #ill, unimpeded and
unestained. 'uch a constuction #ould mean that t"ann", unde the (uise of the e3ecution of the la#, could
#al. defiantl" aboad, desto"in( i(hts of peson and of popet", #holl" fee fom intefeence of couts o
le(islatues. This does not mean, eithe, that a peson in8ued b" the e3ecutive authoit" b" an act un8ustifiable
unde the la# has no emed", but must submit in silence. 6n the conta", it means, simpl", that the -oveno-
-eneal, li.e the 8ud(es of the couts and the membes of the =e(islatue, ma" not be pesonall" mulcted in civil
dama(es fo the conse!uences of an act e3ecuted in the pefomance of his official duties. The 8udicia" has full
po#e to, and #ill, #hen the matte is popel" pesented to it and the occasion 8ustl" #aants it, declae an act of
the -oveno--eneal ille(al and void and place as neal" as possible in status 2uo an" peson #ho has been
depived his libet" o his popet" b" such act. This emed" is assued to eve" peson, ho#eve humble o of
#hateve count", #hen his pesonal o popet" i(hts have been invaded, even b" the hi(hest authoit" of the
state. The thin( #hich the 8udicia" can not do is mulct the -oveno--eneal pesonall" in dama(es #hich esult
fom the pefomance of his official dut", an" moe that it can a membe of the Philippine Commission o the
Philippine Assembl". Public polic" fobids it.
Neithe does this pinciple of nonliabilit" mean that the chief e3ecutive ma" not be pesonall" sued at all in elation
to acts #hich he claims to pefom as such official. 6n the conta", it cleal" appeas fom the discussion
heetofoe had, paticulal" that potion #hich touched the liabilit" of 8ud(es and de# an analo(" bet#een such
liabilit" and that of the -oveno--eneal, that the latte is liable #hen he acts in a case so plainl" outside of his
po#e and authoit" that he can not be said to have e3ecise discetion in deteminin( #hethe o not he had the
i(ht to act. ;hat is held hee is that he #ill be potected fom pesonal liabilit" fo dama(es not onl" #hen he
acts #ithin his authoit", but also #hen he is #ithout authoit", povided he actuall" used discetion and 8ud(ment,
that is, the 8udicial facult", in deteminin( #hethe he had authoit" to act o not. 2n othe #ods, he is entitled to
potection in determinin) the 2uestion of his authority. 2f he decide #on(l", he is still potected povided the
!uestion of his authoit" #as one ove #hich t#o men, easonabl" !ualified fo that position, mi(ht honestl" diffeI
but he is not potected if the lac. of authoit" to act is so plain that t#o such men could not honestl" diffe ove its
detemination. 2n such case, he acts, not as -oveno--eneal but as a pivate individual, and, as such, must
ans#e fo the conse!uences of his act.Y
M. Bustice Bohnson undescoed the conse!uences if the Chief E3ecutive #as not (anted immunit" fom
suit, viz0 X3 3 3. Action upon impotant mattes of state dela"edI the time and substance of the chief e3ecutive
spent in #an(lin( liti(ationI disespect en(endeed fo the peson of one of the hi(hest officials of the 'tate and
fo the office he occupiesI a tendenc" to unest and disodeI esultin( in a #a", in a distust as to the inte(it" of
(ovenment itself.Y
F1*%G
6u 193+ Co&'t%t,t%o& too. effect but it /%/ &ot co&t$%& $&2 '#ec%4%c #ro3%'%o& o& eBec,t%3e
%99,&%t2. Then came the tumult of the matial la# "eas unde the late Pesident ,edinand E. Macos and
the 19)3 Co&'t%t,t%o& #as bon. 2n 1+H1, it #as amended and o&e o4 t1e $9e&/9e&t' %&3o63e/ eBec,t%3e
%99,&%t2. 'ection 1/, Aticle E22 stated0
XThe Pesident shall be immune fom suit duin( his tenue. Theeafte, no suit #hatsoeve shall lie fo official
acts done b" him o b" othes pusuant to his specific odes duin( his tenue.
1/$
The immunities heein povided shall appl" to the incumbent Pesident efeed to in Aticle DE22 of this
Constitution.Y
2n his second Eicente -. 'inco Pofessional Chai =ectue entitled, X Pesidential 2mmunit" And All The 9in(Ws
Men0 The =a# 6f Pivile(e As A 7efense To Actions ,o 7ama(es,Y
F1*&G
petitioneWs leaned counsel, fome 7ean
of the <P colle(e of =a#, Att". Pacifico A(abin, bi(htlined the modifications effected b" this constitutional
amendment on the e3istin( la# on e3ecutive pivile(e. To !uote his dis!uisition0
X2n the Philippines, thou(h, #e sou(ht to do the Ameicans one bette b" enla(in( and fotif"in( the absolute
immunit" concept. ,ist, #e e3tended it to shield the Pesident not onl" fom civil claims but also fom ciminal
cases and othe claims. 'econd, #e enla(ed its scope so that it #ould cove even acts of the Pesident outside
the scope of official duties. And thid, #e boadened its covea(e so as to include not onl" the Pesident but also
othe pesons, be the" (ovenment officials o pivate individuals, #ho acted upon odes of the Pesident. 2t can
be said that at that point most of us #ee suffein( fom A27' >o absolute immunit" defense s"ndome?.Y
T1e O##o'%t%o& %& t1e t1e& 0$t$'$& P$9b$&'$ 'o,-1t t1e re#e$6 o4 t1%' M$rco'%$& co&ce#t o4 eBec,t%3e
%99,&%t2 %& t1e 19)3 Co&'t%t,t%o&. The move #as led b" then Membe of Paliament, no# 'eceta" of
,inance, Albeto Romulo, #ho a(ued that the $4ter %&c,9be&c2 %99,&%t2 (anted to Pesident Macos violated
the pinciple that a public office is a public tust. 1e denounced the immunit" as a etun to the anachonism Xthe
.in( can do no #on(.Y
F1*/G
The effot failed.
The 1+/@ Constitution ceased to e3ist #hen Pesident Macos #as ousted fom office b" the People Po#e
evolution in 1+H&. ;hen the 198) Co&'t%t,t%o& #as cafted, %t' 4r$9er' /%/ &ot ree&$ct the e3ecutive
immunit" povision of the 1+/@ Constitution. The follo#in( eB#6$&$t%o& #as (iven b" dele(ate B. Benas, viz0
F1*HG
XM. 'uae5. Than. "ou.
The last !uestion is #ith efeence to the committeeWs omittin( in the daft poposal the immunit" povision fo the
Pesident. 2 a(ee #ith Commissione Nolledo that the Committee did ve" #ell in sti.in( out this second
sentence, at the ve" least, of the oi(inal povision on immunit" fom suit unde the 1+/@ Constitution. But #ould
the Committee membes not a(ee to a estoation of at least the fist sentence that the Pesident shall be
immune fom suit duin( his tenue, considein( that if #e do not povide him that .ind of an immunit", he mi(ht
be spendin( all his time facin( liti(ations, as the Pesident-in-e3ile in 1a#aii is no# facin( liti(ations almost dail"4
,. Benas. The eason fo the omission is that #e conside it undestood in pesent 8uispudence that duin( his
tenue he is immune fom suit.
M. 'uae5. 'o thee is no need to e3pess it hee.
,. Benas. Thee is no need. 2t #as that #a" befoe. The onl" innovation made b" the 1+/@ Constitution #as to
ma.e that e3plicit and to add othe thin(s.
M. 'uae5. 6n that undestandin(, 2 #ill not pess fo an" moe !ue", Madam Pesident.
2 than. the Commissione fo the claification.Y
;e shall no# ule on the contentions of petitione in the li(ht of this histo". ;e e8ect his a(ument that he
cannot be posecuted fo the eason that he must fist be convicted in the impeachment poceedin(s. The
impeachment tial of petitione Estada #as aboted b" the #al.out of the posecutos and b" the events that led
to his loss of the pesidenc". 2ndeed, on ,ebua" /, $**1, the 'enate passed 'enate Resolution No. H@
XReco(ni5in( that the 2mpeachment Cout is :unctus 5fficio.Y
F1*+G
'ince the 2mpeachment Cout is no# functus
officio, it is untenable fo petitione to demand that he should fist be impeached and then convicted befoe he can
be posecuted. The plea if (anted, #ould put a pepetual ba a(ainst his posecution. 'uch a submission has
nothin( to commend itself fo it #ill place him in a bette situation than a non-sittin( Pesident #ho has not been
1/@
sub8ected to impeachment poceedin(s and "et can be the ob8ect of a ciminal posecution. To be sue, the
debates in the Constitutional Commission ma.e it clea that #hen impeachment poceedin(s have become moot
due to the esi(nation of the Pesident, the pope ciminal and civil cases ma" alead" be filed a(ainst him, viz0
F11*G
X3 3 3
M. A!uino. 6n anothe point, if an impeachment poceedin( has been filed a(ainst the Pesident, fo
e3ample, and the Pesident esi(ns befoe 8ud(ment of conviction has been endeed b" the impeachment
cout o b" the bod", ho# does it affect the impeachment poceedin(4 ;ill it be necessail" dopped4
M. Romulo. 2f #e decide the pupose of impeachment to emove one fom office, then his esi(nation #ould
ende the case moot and academic. 1o#eve, as the povision sa"s, the ciminal and civil aspects of it ma"
continue in the odina" couts.Y
This is in accod #ith ou ulin( in & reA S$t,r&%&o 0er9,/e5
F111G
that Xincumbent Pesidents ae immune
fom suit o fom bein( bou(ht to cout duin( the peiod of thei incumbenc" and tenueY b,t &ot
be2o&/. Considein( the peculia cicumstance that the impeachment pocess a(ainst the petitione has been
aboted and theeafte he lost the pesidenc", petitione Estada cannot demand as a condition sine 2ua non to
his ciminal posecution befoe the 6mbudsman that he be convicted in the impeachment poceedin(s. 1is
eliance in the case of Lec$ro5 3'. S$&/%-$&b$2$&
F11$G
and elated cases
F11@G
ae inapopos fo the" have a
diffeent factual milieu.
;e no# come to the 'co#e o4 %99,&%t2 that can be claimed b" petitione as a non-sittin(
Pesident. The c$'e' filed a(ainst petitione Estada ae cr%9%&$6 %& c1$r$cter. T1e2 %&3o63e #6,&/er, br%ber2
$&/ -r$4t $&/ corr,#t%o&. B" no stetch of the ima(ination can these cimes, especiall" plunde #hich caies
the death penalt", be coveed b" the alle(e mantle of immunit" of a non-sittin( pesident. Petitione cannot cite
an" decision of this Cout licensin( the Pesident to commit ciminal acts and #appin( him #ith post-tenue
immunit" fom liabilit". t D%66 be $&o9$6o,' to 1o6/ t1$t %99,&%t2 %' $& %&oc,6$t%o& 4ro9 6%$b%6%t2 4or
,&6$D4,6 $ct' $&/ o9%''%o&'. The ule is that unla#ful acts of public officials ae not acts of the 'tate and the
office #ho acts ille(all" is not actin( as such but stands in the same footin( as an" othe tespasse.
F11AG
2ndeed, a
citical eadin( of cuent liteatue on e3ecutive immunit" #ill eveal a F,/%c%$6 /%'%&c6%&$t%o& to eB#$&/ t1e
#r%3%6e-e especiall" D1e& %t %9#e/e' t1e 'e$rc1 4or tr,t1 or %9#$%r' t1e 3%&/%c$t%o& o4 $ r%-1t. 2n the 19)4
c$'e o4 US 3. N%Bo&,
F11%G
<' Pesident Richad Ni3on, $ '%tt%&- Pre'%/e&t, #as subpoenaed to poduce cetain
ecodin(s and documents elatin( to his convesations #ith aids and advises. 'even advises of Pesident
Ni3onWs associates #ee facin( cha(es of conspiac" to obstuct 8ustice and othe offenses #hich #ee
committed in a bu(la" of the 7emocatic National 1ead!uates in ;ashin(tonWs ;ate(ate 1otel duin( the
1+/$ pesidential campai(n. Pesident Ni3on himself #as named an unindicted co-conspiato. Pesident Ni3on
moved to !uash the subpoena on the (ound, amon( othes, that the Pesident #as not sub8ect to 8udicial pocess
and that he should fist be impeached and emoved fom office befoe he could be made amenable to 8udicial
poceedin(s. The claim #as e8ected b" the <' 'upeme Cout. 2t concluded that X#hen the (ound fo
assetin( pivile(e as to subpoenaed mateials sou(ht fo use in a ciminal tial is based onl" on the (eneali5ed
inteest in confidentialit", it cannot pevail ove the fundamental demands of due pocess of la# in the fai
administation of ciminal 8ustice.Y 2n the 1982 c$'e o4 N%Bo& 3. F%t5-er$6/,
F11&G
the <' 'upeme Cout futhe
held that the immunit" of the Pesident fom c%3%6 /$9$-e' co3er' o&62 Qo44%c%$6 $ct'.R Recentl", the <'
'upeme Cout had the occasion to eiteate this doctine in the case of C6%&to& 3. .o&e'
F11/G
#hee it held that
the <' PesidentWs immunit" fom suits fo mone" dama(es aisin( out of thei official acts is inapplicable to
unofficial conduct.
T1ere $re 9ore re$'o&' &ot to be '29#$t1et%c to $##e$6' to 'tretc1 t1e 'co#e o4 eBec,t%3e %99,&%t2
%& o,r F,r%'/%ct%o&. 6ne of the (eat themes of the 1+H/ Constitution is that $ #,b6%c o44%ce %' $ #,b6%c tr,'t.
F11HG
2t declaed as a state polic" that X>t?he 'tate shall maintain honest" and inte(it" in the public sevice and ta.e
positive and effective measues a(ainst (aft and couption.)
F11+G
2t odained that X>p?ublic offices and emplo"ees
must at all times be accountable to the people, seve them #ith utmost esponsibilit", inte(it", lo"alt", and
efficienc", act #ith patiotism and 8ustice, and lead modest lives.Y
F1$*G
2t set the ule that X>t?he i(ht of the 'tate to
ecove popeties unla#full" ac!uied b" public officials o emplo"ees, fom them o fom thei nominees o
1/A
tansfeees, shall not be baed b" pesciption, laches o estoppel.Y
F1$1G
2t maintained the 'andi(anba"an as an
anti-(aft cout.
F1$$G
2t ceated the office of the 6mbudsman and endo#ed it #ith enomous po#es, amon( #hich is
to )>i?nvesti(ate on its o#n, o on complaint b" an" peson, an" act o omission of an" public official, emplo"ee,
office o a(enc", #hen such act o omission appeas to be ille(al, un8ust, impope, o inefficient.Y
F1$@G
The 6ffice of
the 6mbudsman #as also (iven fiscal autonom".
F1$AG
T1e'e co&'t%t,t%o&$6 #o6%c%e' D%66 be /e3$6,e/ %4 De
','t$%& #et%t%o&erO' c6$%9 t1$t $ &o&-'%tt%&- #re'%/e&t e&Fo2' %99,&%t2 4ro9 ',%t 4or cr%9%&$6 $ct'
co99%tte/ /,r%&- 1%' %&c,9be&c2.
7
:1et1er or &ot t1e #ro'ec,t%o& o4 #et%t%o&er E'tr$/$ '1o,6/ be e&Fo%&e/ /,e to #reF,/%c%$6 #,b6%c%t2
Petitione also contends that the espondent 6mbudsman should be stopped fom conductin( the
investi(ation of the cases filed a(ainst him due to the baa(e of pe8udicial publicit" on his (uilt. 1e submits that
the espondent 6mbudsman has developed bias and is all set to file the ciminal cases in violation of his i(ht to
due pocess.
Thee ae t#o >$? pincipal le(al and philosophical schools of thou(ht on ho# to deal #ith the ain of
unestained publicit" duin( the investi(ation and tial of hi(h pofile cases.
F1$%G
The 0r%t%'1 $##ro$c1 the poblem
#ith the#re',9#t%o& that publicit" #ill pe8udice a 8u". Thus, En(lish couts eadil" sta" and stop ciminal tials
#hen the i(ht of an accused to fai tial suffes a theat.
F1$&G
The !9er%c$& $##ro$c1 is diffeent. <' couts
assume a'Ee#t%c$6 appoach about the potential effect of pevasive publicit" on the i(ht of an accused to a fai
tial. The" have developed diffeent stains of tests to esolve this issue, i.e." substantial pobabilit" of iepaable
ham, ston( li.elihood, clea and pesent dan(e, etc.
This is &ot t1e 4%r't t%9e the issue of tial b" publicit" has been aised in this Cout to stop the tials o annul
convictions in hi(h pofile ciminal cases.
F1$/G
2n Peo#6e 3'. Tee1$&Eee, .r.,
F1$HG
late eiteated in the case
ofL$rr$&$-$ 3'. Co,rt o4 !##e$6', et $6.,
F1$+G
#e laid do#n the doctine that0
X;e cannot sustain appellantWs claim that he #as denied the i(ht to impatial tial due to pe8udicial publicit". 2t is
tue that the pint and boadcast media (ave the case at ba pevasive publicit", 8ust li.e all hi(h pofile and hi(h
sta.e ciminal tials. 8hen and no!" !e no! rule that the ri)ht of an accused to a fair trial is not incompatible to a
free press. To be sue, esponsible epotin( enhances an accusedWs i(ht to a fai tial fo, as #ell pointed out, a
esponsible pess has al#a"s been e(aded as the handmaiden of effective 8udicial administation, especiall" in
the ciminal field 3 3 3. The pess does not simpl" publish infomation about tials but (uads a(ainst the
miscaia(e of 8ustice b" sub8ectin( the police, posecutos, and 8udicial pocesses to e3tensive public scutin" and
citicism.
Pevasive publicit" is not per se pe8udicial to the i(ht of an accused to fai tial. The mee fact that the tial of
appellant #as (iven a da"-to-da", (avel-to-(avel covea(e does not by itself pove that the publicit" so pemeated
the mind of the tial 8ud(e and impaied his impatialit". ,o one, it is impossible to seal the minds of membes of
the bench fom pe-tial and othe off-cout publicit" of sensational ciminal cases. The state of the at of ou
communication s"stem bin(s ne#s as the" happen stai(ht to ou bea.fast tables and i(ht to ou
bedooms. These ne#s fom pat of ou eve"da" menu of the facts and fictions of life. ,o anothe, ou idea of a
fai and impatial 8ud(e is not that of a hemit #ho is out of touch #ith the #old. ;e have not installed the 8u"
s"stem #hose membes ae ovel" potected fom publicit" lest the" lose thei impatialit". 3 3 3 3 3
3 3 3 3. 6u 8ud(es ae leaned in the la# and tained to dise(ad off-cout evidence and on-camea
pefomances of paties to a liti(ation. Thei mee e3posue to publications and publicit" stunts does not per
se fatall" infect thei impatialit".
At best, appellant can onl" con8ue possibility of pre*udice on the pat of the tial 8ud(e due to the baa(e of
publicit" that chaactei5ed the investi(ation and tial of the case. 2n Martelino" et al. v. Ale*andro" et al." #e
e8ected this standad of possibilit" of pe8udice and adopted the test of actual pre*udice as #e uled that to
#aant a findin( of pe8udicial publicit", thee must be alle(ation and poof that the 8ud(es have been undul"
1/%
influenced, not simpl" that the" mi(ht be, b" the baa(e of publicit". 2n the case at ba, the ecods do not sho#
that the tial 8ud(e developed actual bias a(ainst appellant as a conse!uence of the e3tensive media covea(e of
the pe-tial and tial of his case. The totality of circumstances of the case does not pove that the tial 8ud(e
ac!uied a fi0ed opinion as a esult of pe8udicial publicit" #hich is incapable if chan(e even b" evidence
pesented duin( the tial. Appellant has the buden to pove this actual bias and he has not discha(ed the
buden.Y
;e e3pounded futhe on this doctine in the subse!uent case of :ebb 3'. Ho&. R$,6 /e Leo&, etc.
F1@*G
and
its companion cases. viz.D
XA(ain, petitiones aise the effect of pe8udicial publicit" on thei i(ht to due pocess #hile unde(oin( pelimina"
investi(ation. ;e find no pocedual impediment to its eal" invocation considein( the substantial is. to thei
libet" #hile unde(oin( a pelimina" investi(ation.
3 3 3
The democatic settin(s, media covea(e of tials of sensational cases cannot be avoided and oftentimes, its
e3cessiveness has been a((avated b" .inetic developments in the telecommunications indust". ,o sue, fe#
cases can match the hi(h volume and hi(h velocit" of publicit" that attended the pelimina" investi(ation of the
case at ba. 6u dail" diet of facts and fiction about the case continues unabated even toda". Commentatos still
bombad the public #ith vie#s not too man" of #hich ae sobe and sublime. 2ndeed, even the pincipal actos in
the case M the NB2, the espondents, thei la#"es and thei s"mpathi5es M have paticipated in this media
blit5. The possibilit" of media abuses and thei theat to a fai tial not#ithstandin(, ciminal tials cannot be
completel" closed to the pess and public. 2nn the seminal case of Richmond Ne!spapers" ,nc. v. Vir)inia" it #as
#isel" held0
Z3 3 3
>a? The histoical evidence of the evolution of the ciminal tial in An(lo-Ameican 8ustice demonstates
conclusivel" that the time this NationWs o(anic la#s #ee adopted, ciminal tials both hee and in En(land had
lon( been pesumptivel" open, thus (ivin( assuance that the poceedin(s #ee conducted fail" to all concened
and discoua(in( pe8u", the misconduct of paticipants, o decisions based on secet bias o patialit". 2n
addition, the si(nificant communit" theapeutic value of public tials #as eco(ni5ed0 #hen a shoc.in( cime
occus, a communit" eaction of outa(e and public potest often follo#s, and theeafte the open pocesses of
8ustice seve an impotant poph"lactic pupose, povidin( an outlet fo communit" concen, hostilit", and
emotion. To #o. effectivel", it is impotant that societ"Ws ciminal pocess Zsatisf" the appeaance of 8ustice,W
6ffutt v. <nited 'tates, @AH <' 11, 1A, ++ = Ed 11, /% ' Ct 11, #hich can best be povided b" allo#in( people to
obseve such pocess. ,om this unbo.en, uncontadicted histo", suppoted b" easons as valid toda" as in
centuies past, it must be concluded that a pesumption of openness inhees in the ve" natue of a ciminal tial
unde this NationWs s"stem of 8ustice, Cf., e.(., =evine v. <nited 'tates, @&$ <' &1*, A = Ed $d +H+, H* ' Ct 1*@H.
>b? The feedoms of speech, pess, and assembl", e3pessl" (uaanteed b" the ,ist Amendment, shae a
common coe pupose of assuin( feedom of communication on mattes elatin( to the functionin( of
(ovenment. 2n (uaanteein( feedoms such as those of speech and pess, the ,ist Amendment can be ead as
potectin( the i(ht of eve"one to attend tials so as (ive meanin( to those e3plicit (uaanteesI the ,ist
Amendment i(ht to eceive infomation and ideas means, in the conte3t of tials, that the (uaantees of speech
and pess, standin( alone, pohibit (ovenment fom summail" closin( coutoom doos #hich had lon( been
open to the public at the time the ,ist Amendment #as adopted. Moeove, the i(ht of assembl" is also elevant,
havin( been e(aded not onl" as an independent i(ht but also as a catal"st to au(ment the fee e3ecise of the
othe ,ist Amendment i(hts #ith #hich it #as delibeatel" lin.ed b" the daftsmen. A tial coutoom is a public
place #hee the people (eneall" M and epesentatives of the media M have a i(ht to be pesent, and #hee thei
pesence histoicall" has been thou(ht to enhance the inte(it" and !ualit" of #hat ta.es place.
1/&
>c? Even thou(h the Constitution contains no povision #hich b" its tems (uaantees to the public the i(ht to
attend ciminal tials, vaious fundamental i(hts, not e3pessl" (uaanteed, have been eco(ni5ed as
indispensable to the en8o"ment of enumeated i(hts. The i(ht to attend ciminal tial is implicit in the (uaantees
of the ,ist Amendment0 #ithout the feedom to attend such tials, #hich people have e3ecised fo centuies,
impotant aspects of feedom of speech and of the pess could be evisceated.W
Be that as it ma", #e eco(ni5e that pevasive and pe8udicial publicit" unde cetain cicumstances can depive
an accused of his due pocess i(ht to fai tial. Thus, in Martelino" et al. vs. Ale*andro, et al." #e held that to
#aant a findin( of pe8udicial publicit" thee must be allegation and proof that the 8ud(es have been undul"
influenced, not simpl" that the" mi(ht be, b" the baa(e of publicit". 2n the case at ba, #e find nothin( in the
ecods that #ill pove that the tone and content of the publicit" that attended the investi(ation of petitiones fatall"
infected the fainess and impatialit" of the 76B Panel. Petitiones cannot 8ust el" on the subliminal effects of
publicit" on the sense of fainess of the 76B Panel, fo these ae basicall" unbe.no#n and be"ond .no#in(. To
be sue, the 76B Panel is composed of an Assistant Chief 'tate Posecuto and 'enio 'tate Posecutos. Thei
lon( e3peience in ciminal investi(ation is a facto to conside in deteminin( #hethe the" can easil" be blinded
b" the .lie( li(hts of publicit". 2ndeed, thei $&-pa(e Resolution caies no indubitable indicia of bias fo it does
not appea that the" consideed an" e3ta-ecod evidence e3cept evidence popel" adduced b" the paties. The
len(th of time the investi(ation #as conducted despite its summa" natue and the (eneosit" #ith #hich the"
accommodated the discove" motions of petitiones spea. #ell of thei fainess. At no instance, #e note, did
petitiones see. the dis!ualification of an" membe of the 76B Panel on the (ound of bias esultin( fom thei
bombadment of pe8udicial publicit".Y >emphasis supplied?
Appl"in( the above ulin(, #e hold that t1ere %' &ot e&o,-1 e3%/e&ce to D$rr$&t t1%' Co,rt to e&Fo%& t1e
#re6%9%&$r2 %&3e't%-$t%o& o4 t1e #et%t%o&er b2 t1e re'#o&/e&t O9b,/'9$&. Petitione needs to offe moe
than hostile headlines to discha(e his buden of poof.
F1@1G
1e needs to sho# moe #ei(ht" social science
evidence to successfull" pove the impaied capacit" of a 8ud(e to ende a bias-fee decision. ;ell to note, the
cases a(ainst the petitione ae 't%66 ,&/er-o%&- pelimina" investi(ation b" a special panel of posecutos in the
office of the espondent 6mbudsman. No alle(ation #hatsoeve has been made b" the petitione that the minds
of the membes of this special panel have alead" been infected b" bias because of the pevasive pe8udicial
publicit" a(ainst him. 2ndeed, the special panel has "et to come out #ith its findin(s and the Cout cannot second
(uess #hethe its ecommendation #ill be unfavoable to the petitione.
The ecods sho# that petitione has instead cha(ed espondent 6mbudsman himself #ith bias. To !uote
petitioneWs submission, the espondent 6mbudsman Xhas been influenced b" the baa(e of slanted ne#s
epots, and he has buc.led to the theats and pessues diected at him b" the mobs.Y
F1@$G
Ne#s epots have also
been !uoted to establish that the espondent 6mbudsman has alead" pe8ud(ed the cases of the
petitione
F1@@G
and it is postulated that the posecutos investi(atin( the petitione #ill be influenced b" this bias of
thei supeio.
A(ain, #e hold that the e3%/e&ce poffeed b" the petitione is %&',b't$&t%$6. The accuac" of the ne#s
epots efeed to b" the petitione cannot be the sub8ect of 8udicial notice b" this Cout especiall" in li(ht of the
denials ofthe espondent 6mbudsman as to his alle(ed pe8udice and the pesumption of (ood faith and e(ulait"
in the pefomance of official dut" to #hich he is entitled. Nor c$& De $/o#t t1e t1eor2 o4 /er%3$t%3e #reF,/%ce
o4 #et%t%o&er, %.e., t1$t t1e #reF,/%ce o4 re'#o&/e&t O9b,/'9$& 46oD' to 1%' ',bor/%&$te'. 2n tuth, ou
Revised Rules of Ciminal Pocedue, (ive investi(atin( posecutos the independence to ma.e thei o#n findin(s
and ecommendations albeit the" ae evie#able b" thei supeios.
F1@AG
The" can be evesed but the" can not be
compelled to chan(e thei ecommendations no can the" be compelled to posecute cases #hich the" believe
deseve dismissal. 2n othe #ods, investi(atin( posecutos should not be teated li.e unthin.in( slot machines.
Moeove, if the espondent 6mbudsman esolves to file the cases a(ainst the petitione and the latte believes
that the findin( of pobable cause a(ainst him is the esult of bias, he still has the emed" of assailin( it befoe the
pope cout.
7.
E#%6o-,e
1//
A #od of caution to the Xhootin( thon(.Y The cases a(ainst the petitione #ill no# ac!uie a diffeent
dimension and then move to a ne# sta(e - - - the 6ffice of the 6mbudsman. Pedictabl", the call fom the ma8oit"
fo instant 8ustice #ill hit a hi(he decibel #hile the (nashin( of teeth of the minoit" #ill be moe theatenin(. 2t is
the saced dut" of the espondent 6mbudsman to balance the i(ht of the 'tate to posecute the (uilt" and the
i(ht of an accused to a fai investi(ation and tial #hich has been cate(oi5ed as the Xmost fundamental of all
feedoms.Y
F1@%G
To be sue, the dut" of a posecuto is moe to do 8ustice and less to posecute. 1is is the obli(ation
to insue that the pelimina" investi(ation of the petitione shall have a cicus-fee atmosphee. 1e has to povide
the estaint a(ainst #hat =od B"ce calls Xthe impatient vehemence of the ma8oit".Y Ri(hts in a democac" ae
not decided b" the mob #hose 8ud(ment is dictated b" a(e and not b" eason. No ae i(hts necessail"
esolved b" the po#e of numbe fo in a democac", the do(matism of the ma8oit" is not and should neve be the
definition of the ule of la#. 2f democac" has poved to be the best fom of (ovenment, it is because it has
espected the i(ht of the minoit" to convince the ma8oit" that it is #on(. Toleance of multifomit" of thou(hts,
ho#eve offensive the" ma" be, is the .e" to manWs po(ess fom the cave to civili5ation. =et us not tho# a#a"
that .e" 8ust to pande to some peopleWs pe8udice.
N 7E: :HEREOF, the petitions of Boseph E8ecito Estada challen(in( the espondent -loia Macapa(al-
Ao"o as the de *ure 1Ath Pesident of the Republic ae 72'M2''E7.
SO OR"ERE".
;ellosillo" Melo" Fuisumbin)" Gonza)a-Reyes" and >e Leon" 6r." 66." concu.
>avide" 6r." (.6." no pat in vie# of e3pession (iven in the open cout and in the e3tended e3planation.
Vitu)" 6." see concuin( opinion.
-apunan" 6." concu in the esult and eseve the i(ht to #ite a sepaate opinion.
Mendoza" 6." see concuin( opinion.
an)aniban" 6." no pat pe lette of 2nhibition dated ,eb. 1%, $*** mention in footnote %1 of ponencia.
ardo" 6." in the esultI believes that petitione #as constained to esi(n and eseve his vote in immunit"
fom suit
;uena" 6." in the esult.
9nares-'antia)o" 6." concu in the esult and eseve the filin( of a sepaate opinion.
'andoval-Gutierrez" 6." concu in the esult and eseve the i(ht to #ite a sepaate opinion.
Republic of the Philippines
SUPREME COURT
Manila
EN 0!NC
G.R. No. 1)*6+6 !,-,'t 1+, 2**)
THE METROPOLT!N M!NL! "E7ELOPMENT !UTHORT; $&/ 0!;!N FERN!N"O $' C1$%r9$& o4 t1e
Metro#o6%t$& M$&%6$ "e3e6o#9e&t !,t1or%t2, petitiones,
vs.
7RON TR!NSPORT!TON CO., NC., espondent.
3 --------------------------------------------- 3
G.R. No. 1)*6+) !,-,'t 1+, 2**)
HON. !L0ERTO G. ROMULO, EBec,t%3e Secret$r2, t1e METROPOLT!N M!NL! "E7ELOPMENT
!UTHORT; $&/ 0!;!N FERN!N"O $' C1$%r9$& o4 t1e Metro#o6%t$& M$&%6$ "e3e6o#9e&t
!,t1or%t2,petitiones,
1/H
vs.
MENCORP TR!NSPORT!TON S;STEM, NC., espondent.
" E C S O N
C!RPO MOR!LES, J.:
The follo#in( conditions in 1+&+, as obseved b" this Cout0
Eehicles have inceased in numbe. Taffic con(estion has moved fom bad to #ose, fom toleable to
citical. The numbe of people #ho use the thoou(hfaes has multiplied 3 3 3,
1
have emained unchec.ed and have evebeated to this da". Taffic 8ams continue to clo( the steets of Meto
Manila, bin(in( vehicles to a standstill at main oad ateies duin( ush hou taffic and sappin( peopleWs
ene(ies and patience in the pocess.
The pesent petition fo evie# on cetioai, ooted in the taffic con(estion poblem, !uestions the authoit" of the
Metopolitan Manila 7evelopment Authoit" >MM7A? to ode the closue of povincial bus teminals alon(
Epifanio de los 'antos Avenue >E7'A? and ma8o thoou(hfaes of Meto Manila.
'pecificall" challen(ed ae t#o 6des issued b" Bud(e 'ilvino T. Pampilo, B. of the Re(ional Tial Cout >RTC?
of Manila, Banch $& in Civil Case Nos. *@-1*%H%* and *@-1*&$$A.
The fist assailed 6de of 'eptembe H, $**%,
$
#hich esolved a motion fo econsideation filed b" heein
espondents, declaed E3ecutive 6de >E.6.? No. 1/+, heeafte efeed to as the E.6., )unconstitutional as it
constitutes an uneasonable e3ecise of police po#e.) The second assailed 6de of Novembe $@, $**%
@
denied
petitionesW motion fo econsideation.
The follo#in( facts ae not disputed0
Pesident -loia Macapa(al Ao"o issued the E.6. on ,ebua" 1*, $**@, )Povidin( fo the
Establishment of -eate Manila Mass Tanspot '"stem,) the petinent potions of #hich ead0
:HERE!S, Meto Manila continues to be the cente of emplo"ment oppotunities, tade
and commece of the -eate Meto Manila aeaI
:HERE!S, the taffic situation in Meto Manila has affected the ad8acent povinces of
Bulacan, Cavite, =a(una, and Ri5al, o#in( to the continued movement of esidents and
industies to moe affodable and economicall" viable locations in these povincesI
:HERE!S, the Metopolitan Manila 7evelopment Authoit" >MM7A? is tas.ed to
undeta.e measues to ease taffic con(estion in Meto Manila and ensue the
convenient and efficient tavel of commutes #ithin its 8uisdictionI
:HERE!S, a pima" cause of taffic con(estion in Meto Manila has been the
numeous buses pl"in( the steets that impedes FsicG the flo# of vehicles and commutes
due to the inefficient connectivit" of the diffeent tanspot modesI
:HERE!S, the MM7A has ecommended a plan to decon(est taffic b" eliminatin( the
bus teminals no# located alon( ma8o Meto Manila thoou(hfaes and povidin( moe
convenient access to the mass tanspot s"stem to the commutin( public thou(h the
povision of mass tanspot teminal facilities that #ould inte(ate the e3istin( tanspot
modes, namel" the buses, the ail-based s"stems of the =RT, MRT and PNR and to
1/+
facilitate and ensue efficient tavel thou(h the impoved connectivit" of the diffeent
tanspot modesI
:HERE!S, the national (ovenment must povide the necessa" fundin( e!uiements
to immediatel" implement and ende opeational these po8ectsI and e3tent to MM7A
such othe assistance as ma" be #aanted to ensue thei e3peditious posecution.
NO:, THEREFORE, , GLOR! M!C!P!G!L-!RRO;O, Pesident of the Philippines,
b" vitue of the po#es vested in me b" la#, do heeb" ode0
Sect%o& 1. *@# POJ#C*. M The po8ect shall be identified as -REATER MAN2=A
TRAN'P6RT 'K'TEM Po8ect.
Sect%o& 2. POJ#C* OBJ#C*I3#S. M 2n accodance #ith the plan poposed b" MM7A,
the po8ect aims to develop fou >A? inteim intemodal mass tanspot teminals to
inte(ate the diffeent tanspot modes, as #ell as those that shall heeafte be
developed, to seve the commutin( public in the noth#est, noth, east, south, and
south#est of Meto Manila. 2nitiall", the po8ect shall concentate on immediatel"
establishin( the mass tanspot teminals fo the noth and south Meto Manila
commutes as heeinafte descibed.
Sect%o& 3. POJ#C* IMP'#M#8*I85 A5#8CA. M The Metro#o6%t$& M$&%6$
"e3e6o#9e&t !,t1or%t2 LMM"!M , is heeb" desi(nated as the implementin( A(enc" fo
the po8ect. ,o this pupose, MM7A is diected to undeta.e such infastuctue
development #o. as ma" be necessa" and, theeafte, mana(e the po8ect until it ma"
be tuned-ove to moe appopiate a(encies, if found suitable and convenient.
'pecificall", MM7A shall have the follo#in( functions and esponsibilities0
a? Cause the pepaation of the Maste Plan fo the po8ects, includin(
the desi(ns and costin(I
b? Coodinate the use of the land andLo popeties needed fo the po8ect
#ith the espective a(encies andLo entities o#nin( themI
c? 'upevise and mana(e the constuction of the necessa" stuctues
and facilitiesI
d? E3ecute such contacts o a(eements as ma" be necessa", #ith the
appopiate (ovenment a(encies, entities, andLo pivate pesons, in
accodance #ith e3istin( la#s and petinent e(ulations, to facilitate the
implementation of the po8ectI
e? Accept, mana(e and disbuse such funds as ma" be necessa" fo the
constuction andLo implementation of the po8ects, in accodance #ith
pevailin( accountin( and audit polices and pactice in (ovenment.
f? Enlist the assistance of an" national (ovenment a(enc", office o
depatment, includin( local (ovenment units, (ovenment-o#ned o
contolled copoations, as ma" be necessa"I
(? Assi(n o hie the necessa" pesonnel fo the above puposesI and
1H*
h? Pefom such othe elated functions as ma" be necessa" to enable it
to accomplish the ob8ectives and puposes of this E3ecutive
6de.
A
>Emphasis in the oi(inalI undescoin( supplied?
As the above-!uoted potions of the E.6. noted, the pima" cause of taffic con(estion in Meto Manila has been
the numeous buses pl"in( the steets and the inefficient connectivit" of the diffeent tanspot modesI
%
and the
MM7A had )ecommended a plan to decon(est taffic b" eliminatin( the bus teminals no# located alon( ma8o
Meto Manila thoou(hfaes and povidin( moe and convenient access to the mass tanspot s"stem to the
commutin( public thou(h the povision of mass tanspot teminal facilities)
&
#hich plan is efeed to unde the
E.6. as the -eate Manila Mass Tanspot '"stem Po8ect >the Po8ect?.
The E.6. thus desi(nated the MM7A as the implementin( a(enc" fo the Po8ect.
Pusuant to the E.6., the Meto Manila Council >MMC?, the (ovenin( boad and polic"ma.in( bod" of the MM7A,
issued Resolution No. *@-*/ seies of $**@
/
e3pessin( full suppot of the Po8ect. Reco(ni5in( the impeative to
inte(ate the diffeent tanspot modes via the establishment of common bus pa.in( teminal aeas, the MMC
cited the need to emove the bus teminals located alon( ma8o thoou(hfaes of Meto Manila.
H
6n ,ebua" $A, $**@, Eion Tanspot Co., 2nc. >Eion?, a domestic copoation en(a(ed in the business of public
tanspotation #ith a povincial bus opeation,
+
filed a petition fo declaato" elief
1*
befoe the RTC
11
of Manila.
2n its petition #hich #as doc.eted as Civil Case No. *@-1*%H%*, Eion alle(ed that the MM7A, thou(h Chaiman
,enando, #as )poised to issue a Cicula, Memoandum o 6de closin(, o tantamount to closin(, all povincial
bus teminals alon( E7'A and in the #hole of the Metopolis unde the pete3t of taffic e(ulation.)
1$
This
impendin( move, it stessed, #ould mean the closue of its bus teminal in 'ampaloc, Manila and t#o othes in
Oue5on Cit".
Alle(in( that the MM7AWs authoit" does not include the po#e to diect povincial bus opeatos to abandon thei
e3istin( bus teminals to thus depive them of the use of thei popet", Eion as.ed the cout to constue the
scope, e3tent and limitation of the po#e of the MM7A to e(ulate taffic unde R.A. No. /+$A, )An Act Ceatin(
the Metopolitan Manila 7evelopment Authoit", 7efinin( its Po#es and ,unctions, Povidin( ,unds Theefo and
,o 6the Puposes.)
Eion also as.ed fo a ulin( on #hethe the planned closue of povincial bus teminals #ould contavene the
Public 'evice Act and elated la#s #hich mandate public utilities to povide and maintain thei o#n teminals as a
e!uisite fo the pivile(e of opeatin( as common caies.
1@
Mencop Tanspotation '"stem, 2nc. >Mencop?, anothe povincial bus opeato, late filed a simila petition fo
declaato" elief
1A
a(ainst E3ecutive 'eceta" Albeto -. Romulo and MM7A Chaiman ,enando.
Mencop as.ed the cout to declae the E.6. unconstitutional and ille(al fo tans(essin( the possesso" i(hts of
o#nes and opeatos of public land tanspotation units ove thei espective teminals.
Avein( that MM7A Chaiman ,enando had be(un to implement a plan to close and eliminate all povincial bus
teminals alon( E7'A and in the #hole of the metopolis and to tansfe thei opeations to common bus
teminals,
1%
Mencop pa"ed fo the issuance of a tempoa" estainin( ode >TR6? andLo #it of pelimina"
in8unction to estain the impendin( closue of its bus teminals #hich it #as leasin( at the cone of E7'A and
Ne# Ko. 'teet in Cubao and at the intesection of Blumentitt, =aon =aan and 1alcon 'teets in Oue5on Cit".
The petition #as doc.eted as Civil Case No. *@-1*&$$A and #as affled to Banch A/ of the RTC of Manila.
MencopWs petition #as consolidated on Bune 1+, $**@ #ith EionWs petition #hich #as affled to Banch $& of the
RTC, Manila.
1H1
MencopWs pa"e fo a TR6 andLo #it of in8unction #as denied as #as its application fo the issuance of a
pelimina" in8unction.
1&
2n the Pe-Tial 6de
1/
issued b" the tial cout, the issues #ee nao#ed do#n to #hethe 1? the MM7AWs po#e
to e(ulate taffic in Meto Manila included the po#e to diect povincial bus opeatos to abandon and close thei
dul" established and e3istin( bus teminals in ode to conduct business in a common teminalI >$? the E.6. is
consistent #ith the Public 'evice Act and the ConstitutionI and >@? povincial bus opeatos #ould be depived of
thei eal popeties #ithout due pocess of la# should the" be e!uied to use the common bus teminals.
<pon the a(eement of the paties, the" filed thei espective position papes in lieu of heain(s.
B" 7ecision
1H
of Banua" $A, $**%, the tial cout sustained the constitutionalit" and le(alit" of the E.6. pusuant to
R.A. No. /+$A, #hich empo#eed the MM7A to administe Meto ManilaWs basic sevices includin( those of
tanspot and taffic mana(ement.
The tial cout held that the E.6. #as a valid e3ecise of the police po#e of the 'tate as it satisfied the t#o tests
of la#ful sub8ect matte and la#ful means, hence, EionWs and MencopWs popet" i(hts must "ield to police
po#e.
6n the sepaate motions fo econsideation of Eion and Mencop, the tial cout, b" 6de of 'eptembe H, $**%,
evesed its 7ecision, this time holdin( that the E.6. #as )an uneasonable e3ecise of police po#e)I that the
authoit" of the MM7A unde 'ection >%?>e? of R.A. No. /+$A does not include the po#e to ode the closue of
EionWs and MencopWs e3istin( bus teminalsI and that the E.6. is inconsistent #ith the povisions of the Public
'evice Act.
PetitionesW motion fo econsideation #as denied b" Resolution of Novembe $@, $**%.
1ence, this petition, #hich faults the tial cout fo failin( to ule that0 >1? the e!uisites of declaato" elief ae not
pesent, thee bein( no 8usticiable contoves" in Civil Case Nos. *@-1*%H%* and *@-1*&$$AI and >$? the
Pesident has the authoit" to undeta.e o cause the implementation of the Po8ect.
1+
Petitiones contend that thee is no 8usticiable contoves" in the cases fo declaato" elief as nothin( in the bod"
of the E.6. mentions o odes the closue and elimination of bus teminals alon( the ma8o thoou(hfaes of
Meto Manila. Eion and Mencop, the" a(ue, failed to poduce an" lette o communication fom the E3ecutive
7epatment appisin( them of an immediate plan to close do#n thei bus teminals.
And petitiones maintain that the E.6. is onl" an administative diective to (ovenment a(encies to coodinate
#ith the MM7A and to ma.e available fo use (ovenment popet" alon( E7'A and 'outh E3pess#a" coidos.
The" add that the onl" elation ceated b" the E.6. is that bet#een the Chief E3ecutive and the implementin(
officials, but not bet#een thid pesons.
The petition fails.
2t is tue, as espondents have pointed out, that the alle(ed deficienc" of the consolidated petitions to meet the
e!uiement of 8usticiabilit" #as not amon( the issues defined fo esolution in the Pe-Tial 6de of Banua" 1$,
$**A. 2t is e!uall" tue, ho#eve, that the !uestion #as epeatedl" aised b" petitiones in thei Ans#e to EionWs
petition,
$*
thei Comment of Apil $+, $**@ opposin( MencopWs pa"e fo the issuance of a TR6,
$1
and thei
Position Pape of Au(ust $@, $**A.
$$
2n bin(in( thei petitions befoe the tial cout, both espondents pleaded the e3istence of the essential e!uisites
fo thei espective petitions fo declaato" elief,
$@
and efuted petitionesW contention that a 8usticiable
contoves" #as lac.in(.
$A
Thee can be no den"in(, theefoe, that the issue #as aised and discussed b" the
paties befoe the tial cout.
1H$
The follo#in( ae the essential e!uisites fo a declaato" elief petition0 >a? thee must be a 8usticiable
contoves"I >b? the contoves" must be bet#een pesons #hose inteests ae adveseI >c? the pat" see.in(
declaato" elief must have a le(al inteest in the contoves"I and >d? the issue invo.ed must be ipe fo 8udicial
detemination.
$%
The e!uiement of the pesence of a 8usticiable contoves" is satisfied #hen an actual contoves" o
theripenin) seeds theeof e3ist bet#een the paties, all of #hom ae sui *uris and befoe the cout, and the
declaation sou(ht #ill help in endin( the contoves".
$&
A !uestion becomes 8usticiable #hen it is tanslated into a
claim of i(ht #hich is actuall" contested.
$/
2n the pesent cases, espondentsW esot to cout #as pompted b" the issuance of the E.6. The Ath ;heeas
clause of the E.6. sets out in clea sto.es the MM7AWs plan to )decon(est taffic b" e6%9%&$t%&- the bus
teminals no# located alon( ma8o Meto Manila thoou(hfaes and povidin( moe convenient access to the
mass tanspot s"stem to the commutin( public thou(h the povision of mass tanspot teminal facilities 3 3 3.)
>Emphasis supplied?
'ection $ of the E.6. theeafte la"s do#n the immediate establishment of common bus teminals fo noth- and
south-bound commutes. ,o this pupose, 'ection H diects the 7epatment of Bud(et and Mana(ement to
allocate funds of not moe than one hunded million pesos >P1**,***,***? to cove the cost of the constuction of
the noth and south teminals. And the E.6. #as made effective immediatel".
The MM7AWs esolve to immediatel" implement the Po8ect, its denials to the conta" not#ithstandin(, is also
evident fom telltale cicumstances, foemost of #hich #as the passa(e b" the MMC of Resolution No. *@-*/,
'eies of $**@ e3pessin( its full suppot of the immediate implementation of the Po8ect.
Notable fom the %th ;heeas clause of the MMC Resolution is the plan to )emove the bus teminals located
alon( ma8o thoou(hfaes of Meto Manila and an u(ent need to inte(ate the diffeent tanspot modes.) The
/th ;heeas clause poceeds to mention the establishment of the Noth and 'outh teminals.
As alle(ed in EionWs petition, a dia(am of the -MA-MT' Noth BusLRail Teminal had been da#n up, and
constuction of the teminal is alead" in po(ess. The MM7A, in its Ans#e
$H
and Position Pape,
$+
in fact
affimed that the (ovenment had be(un to implement the Po8ect.
2t thus appeas that the issue has alead" tanscended the boundaies of #hat is meel" con8ectual o
anticipato".la!phil
<nde the cicumstances, fo espondents to #ait fo the actual issuance b" the MM7A of an ode fo the closue
of espondentsW bus teminals #ould be foolhad" fo, b" then, the pope action to bin( #ould no lon(e be fo
declaato" elief #hich, unde 'ection 1, Rule &@
@*
of the Rules of Cout, must be bou(ht beforethee is a beach
o violation of i(hts.
As fo petitionesW contention that the E.6. is a mee administative issuance #hich ceates no elation #ith thid
pesons, it does not pesuade. 'uffice it to stess that to ensue the success of the Po8ect fo #hich the
concened (ovenment a(encies ae diected to coodinate thei activities and esouces, the e3istin( bus
teminals o#ned, opeated o leased b" thid pesons li.e espondents #ould have to be eliminatedI and
espondents #ould be foced to opeate fom the common bus teminals.
2t cannot be (ainsaid that the E.6. #ould have an advese effect on espondents. The closue of thei bus
teminals #ould mean, amon( othe thin(s, the loss of income fom the opeation andLo entals of stalls theeat.
Pecisel", espondents claim a depivation of thei constitutional i(ht to popet" #ithout due pocess of la#.
Respondents have thus ampl" demonstated a )pesonal and substantial inteest in the case such that Fthe" haveG
sustained, o #ill sustain, diect in8u" as a esult of Fthe E.6.WsG enfocement.)
@1
Conse!uentl", the established
1H@
ule that the constitutionalit" of a la# o administative issuance can be challen(ed b" one #ho #ill sustain a diect
in8u" as a esult of its enfocement has been satisfied b" espondents.
6n to the meits of the case.
Respondents posit that the MM7A is devoid of authoit" to ode the elimination of thei bus teminals unde the
E.6. #hich, the" a(ue, is unconstitutional because it violates both the Constitution and the Public 'evice ActI
and that neithe is the MM7A clothed #ith such authoit" unde R.A. No. /+$A.
Petitiones submit, ho#eve, that the eal issue concens the PesidentWs authoit" to undeta.e o to cause the
implementation of the Po8ect. The" asset that the authoit" of the Pesident is deived fom E.6. No. 1$%,
)Reo(ani5in( the Minist" of Tanspotation and Communications 7efinin( its Po#es and ,unctions and fo
6the Puposes,) he esidual po#e andLo E.6. No. $+$, othe#ise .no#n as the Administative Code of 1+H/.
The" add that the E.6. is also a valid e3ecise of the police po#e.
E.6. No. 1$%,
@$
#hich fome Pesident Coa5on A!uino issued in the e3ecise of le(islative po#es, eo(ani5ed
the then Minist" >no# 7epatment? of Tanspotation and Communications. 'ections A, %, & and $$ of E.6. 1$%,
as amended b" E.6. 1$%-A,
@@
ead0
'ECT26N A. Mandate. C The Minist" shall be the #r%9$r2 #o6%c2, #6$&&%&-, #ro-r$99%&-,
coor/%&$t%&-, %9#6e9e&t%&-, re-,6$t%&- $&/ $/9%&%'tr$t%3e e&t%t2 o4 t1e EBec,t%3e 0r$&c1 o4 t1e
-o3er&9e&t %& t1e #ro9ot%o&, /e3e6o#9e&t $&/ re-,6$t%o& o4 /e#e&/$b6e $&/ coor/%&$te/
&etDorE' o4 tr$&'#ort$t%o& and communication s"stems as #ell as in the fast, safe, efficient and eliable
postal, tanspotation and communications sevices.
To accomplish such mandate, the Minist" shall have the follo#in( ob8ectives0
>a? Pomote the development of dependable and coodinated net#o.s of tanspotation
and communications s"stemsI
>b? G,%/e -o3er&9e&t $&/ #r%3$te %&3e't9e&t %& t1e /e3e6o#9e&t o4 t1e co,&tr2O'
%&ter9o/$6 tr$&'#ort$t%o& $&/ co99,&%c$t%o&' '2'te9' in a most pactical,
e3peditious, and odel" fashion fo ma3imum safet", sevice, and cost effectivenessI
>Emphasis and undescoin( supplied?
3 3 3 3
'ECT26N %. Po#es and ,unctions. C To accomplish its mandate, the Minist" shall have the follo#in(
po#es and functions0
>a? ,omulate and ecommend national policies and (uidelines fo the pepaation and
implementation of inte(ated and compehensive tanspotation and communications
s"stems at the national, e(ional and local levelsI
>b? E't$b6%'1 $&/ $/9%&%'ter co9#re1e&'%3e $&/ %&te-r$te/ #ro-r$9' 4or
tr$&'#ort$t%o& $&/ co99,&%c$t%o&', and fo this pupose, ma" call on an" a(enc",
copoation, o o(ani5ation, #hethe public o pivate, #hose development po(ams
include tanspotation and communications as an inte(al pat theeof, to paticipate and
assist in the pepaation and implementation of such po(amI
>c? Assess, evie# and povide diection to tanspotation and communications eseach
and development po(ams of the (ovenment in coodination #ith othe institutions
concenedI
1HA
>d? !/9%&%'ter $66 6$D', r,6e' $&/ re-,6$t%o&' %& t1e 4%e6/ o4 tr$&'#ort$t%o& $&/
co99,&%c$t%o&'I >Emphasis and undescoin( supplied?
3 3 3 3
'ECT26N &. Authoit" and Responsibilit". C T1e $,t1or%t2 $&/ re'#o&'%b%6%t2 4or t1e eBerc%'e o4 t1e
9$&/$te o4 t1e M%&%'tr2 $&/ 4or t1e /%'c1$r-e o4 %t' #oDer' $&/ 4,&ct%o&' '1$66 be3e'te/ %& t1e
M%&%'ter o4 Tr$&'#ort$t%o& $&/ Co99,&%c$t%o&', heeinafte efeed to as the Ministe, #ho shall
have supevision and contol ove the Minist" and shall be appointed b" the Pesident. >Emphasis and
undescoin( supplied?
'ECT26N $$. 2mplementin( Authoit" of Ministe. C T1e M%&%'ter '1$66 %'',e ',c1 or/er', r,6e',
re-,6$t%o&' $&/ ot1er %'',$&ce' $' 9$2 be &ece''$r2 to e&',re t1e e44ect%3e %9#6e9e&t$t%o& o4
t1e #ro3%'%o&' o4 t1%' EBec,t%3e Or/er. >Emphasis and undescoin( supplied?
2t is eadil" appaent fom the above!uoted povisions of E.6. No. 1$%, as amended, that the Pesident, then
possessed of and e3ecisin( le(islative po#es, mandated the 76TC to be t1e #r%9$r2 polic", plannin(,
po(ammin(, coodinatin(, implementin(, e(ulatin( and administative entit" to pomote, develop and e(ulate
net#o.s of tanspotation and communications. The (ant of authoit" to the 76TC includes the po#e
toe't$b6%'1 and $/9%&%'ter compehensive and inte(ated po(ams fo tanspotation and communications.
As ma" be seen futhe, the Ministe >no# 'eceta"? of the 76TC is vested #ith the authoit" and esponsibilit"
to e3ecise the mandate (iven to the depatment. Accodin(l", the 76TC 'eceta" is authoi5ed to issue such
odes, ules, e(ulations and othe issuances as ma" be necessa" to ensue the effective implementation of the
la#.
'ince, unde the la#, the 76TC is authoi5ed to establish and administe po(ams and po8ects fo
tanspotation, it follo#s that the Pesident ma" e3ecise the same po#e and authoit" to ode the
implementation of the Po8ect, #hich admittedl" is one fo tanspotation.
'uch authoit" spin(s fom the PesidentWs po#e of contol ove all e3ecutive depatments as #ell as the
obli(ation fo the faithful e3ecution of the la#s unde Aticle E22, 'ection 1/ of the Constitution #hich povides0
'ECT26N 1/. The Pesident shall have contol of all the e3ecutive depatments, bueaus and offices. 1e
shall ensue that the la#s be faithfull" e3ecuted.
This constitutional povision is echoed in 'ection 1, Boo. 222 of the Administative Code of 1+H/. Notabl", 'ection
@H, Chapte @/, Boo. 2E of the same Code defines the PesidentWs po#e of supevision and contol ove the
e3ecutive depatments, vi50
'ECT26N @H. 7efinition of Administative Relationships. C <nless othe#ise e3pessl" stated in the
Code o in othe la#s definin( the special elationships of paticula a(encies, administative elationships
shall be cate(oi5ed and defined as follo#s0
>1? 'upevision and Contol. C S,#er3%'%o& $&/ co&tro6 '1$66 %&c6,/e $,t1or%t2 to
$ct directl% D1e&e3er $ '#ec%4%c 4,&ct%o& %' e&tr,'te/ b2 6$D or re-,6$t%o& to $ ',bor/%&$te I diect
the pefomance of dut"I estain the commission of actsI evie#, appove, evese o modif" acts and
decisions of subodinate officials o unitsI detemine pioities in the e3ecution of plans and po(ams.
<nless a diffeent meanin( is e3plicitl" povided in the specific la# (ovenin( the elationship of paticula
a(encies the #od )contol) shall encompass supevision and contol as defined in this paa(aph. 3 3 3
>Emphasis and undescoin( supplied?
1H%
Thus, #heneve a specific function is entusted b" la# o e(ulation to a subodinate, the Pesident ma" act
diectl" o meel" diect the pefomance of a dut".
@A
Respectin( the PesidentWs authoit" to ode the implementation of the Po8ect in the e3ecise of the police po#e
of the 'tate, suffice it to stess that the po#es vested in the 76TC 'eceta" to establish and administe
compehensive and inte(ated po(ams fo tanspotation and communications and to issue odes, ules and
e(ulations to implement such mandate >#hich, as peviousl" discussed, ma" also be e3ecised b" the Pesident?
have been so dele(ated fo the (ood and #elfae of the people. 1ence, these po#es pata.e of the natue of
police po#e.
Police po#e is the plena" po#e vested in the le(islatue to ma.e, odain, and establish #holesome and
easonable la#s, statutes and odinances, not epu(nant to the Constitution, fo the (ood and #elfae of the
people.
@%
This po#e to pescibe e(ulations to pomote the health, moals, education, (ood ode o safet", and
(eneal #elfae of the people flo#s fom the eco(nition that salus populi est suprema le0 ^ the #elfae of the
people is the supeme la#.
;hile police po#e ests pimail" #ith the le(islatue, such po#e ma" be dele(ated, as it is in fact inceasin(l"
bein( dele(ated.
@&
B" vitue of a valid dele(ation, the po#e ma" be e3ecised b" the Pesident and administative
boads
@/
as #ell as b" the la#ma.in( bodies of municipal copoations o local (ovenments unde an e3pess
dele(ation b" the =ocal -ovenment Code of 1++1.
@H
The authoit" of the Pesident to ode the implementation of the Po8ect not#ithstandin(, the desi(nation of the
MM7A as the implementin( a(enc" fo the Po8ect ma" not be sustained. 2t is ultra vires, thee bein( no le(al
basis theefo.
2t beas stessin( that unde the povisions of E.6. No. 1$%, as amended, it is the 76TC, and not the MM7A,
#hich is authoi5ed to establish and implement a po8ect such as the one sub8ect of the cases at ba. Thus, the
Pesident, althou(h authoi5ed to establish o cause the implementation of the Po8ect, must e3ecise the authoit"
thou(h the instumentalit" of the "OTC #hich, b" la#, is t1e #r%9$r2 implementin( and administative entit" in
the pomotion, development and e(ulation of net#o.s of tanspotation, and the one so authoi5ed to establish
and implement a po8ect such as the Po8ect in !uestion.
B" desi(natin( the MM7A as the implementin( a(enc" of the Po8ect, the Pesident cleal" ovestepped the limits
of the authoit" confeed b" la#, endein( E.6. No. 1/+ ultra vires.
2n anothe vein, the validit" of the desi(nation of MM7A flies in the absence of a specific (ant of authoit" to it
unde R.A. No. /+$A.
To ecall, R.A. No. /+$A declaed the Metopolitan Manila aea
@+
as a )special development and administative
e(ion) and placed the administation of )meto-#ide) basic sevices affectin( the e(ion unde the MM7A.
'ection $ of R.A. No. /+$A specificall" authoi5es the MM7A to pefom )plannin(, monitoin( and coodinative
functions, and in the pocess e3ecise e(ulato" and supeviso" authoit" ove the delive" of meto-#ide
sevices,) includin( tanspot and taffic mana(ement.
A*
'ection % of the same la# enumeates the po#es and
functions of the MM7A as follo#s0
>a? ,omulate, coodinate and e(ulate the implementation of medium and lon(-tem plans and
po(ams fo the delive" of meto-#ide sevices, land use and ph"sical development #ithin
Metopolitan Manila, consistent #ith national development ob8ectives and pioitiesI
>b? Pepae, coodinate and e(ulate the implementation of medium-tem investment po(ams fo
meto-#ide sevices #hich shall indicate souces and uses of funds fo pioit" po(ams and
1H&
po8ects, and #hich shall include the pac.a(in( of po8ects and pesentation to fundin(
institutionsI
>c? <ndeta.e and mana(e on its o#n meto-#ide po(ams and po8ects fo the delive" of
specific sevices unde its 8uisdiction, sub8ect to the appoval of the Council. ,o this pupose,
MM7A can ceate appopiate po8ect mana(ement officesI
>d? Coodinate and monito the implementation of such plans, po(ams and po8ects in Meto
ManilaI identif" bottlenec.s and adopt solutions to poblems of implementationI
>e? T1e MM"! '1$66 'et t1e #o6%c%e' co&cer&%&- tr$44%c %& Metro M$&%6$, $&/ '1$66
coor/%&$te $&/ re-,6$te t1e %9#6e9e&t$t%o& o4 $66 #ro-r$9' $&/ #roFect' co&cer&%&-
tr$44%c 9$&$-e9e&t, '#ec%4%c$662 #ert$%&%&- to e&4orce9e&t, e&-%&eer%&- $&/
e/,c$t%o& .<pon e!uest, it shall be e3tended assistance and coopeation, includin( but not
limited to, assi(nment of pesonnel, b" all othe (ovenment a(encies and offices concenedI
>f? &'t$66 $&/ $/9%&%'ter $ '%&-6e t%cEet%&- '2'te9, 4%B, %9#o'e $&/ co66ect 4%&e' $&/
#e&$6t%e' 4or $66 E%&/' o4 3%o6$t%o&' o4 tr$44%c r,6e' $&/ re-,6$t%o&' , #hethe movin( o non-
movin( in natue, and confiscate and suspend o evo.e divesW licenses in the enfocement of
such taffic la#s and e(ulations, the povisions of RA A1@& and P7 1&*% to the conta"
not#ithstandin(. ,o this pupose, the Authoit" shall impose all taffic la#s and e(ulations in
Meto Manila, thou(h its taffic opeation cente, and ma" deputi5e membes of the PNP, taffic
enfoces of local (ovenment units, dul" licensed secuit" (uads, o membes of non-
(ovenmental o(ani5ations to #hom ma" be dele(ated cetain authoit", sub8ect to such
conditions and e!uiements as the Authoit" ma" imposeI and
>(? Pefom othe elated functions e!uied to achieve the ob8ectives of the MM7A, includin( the
undeta.in( of delive" of basic sevices to the local (ovenment units, #hen deemed necessa"
sub8ect to pio coodination #ith and consent of the local (ovenment unit concened.) >Emphasis
and undescoin( supplied?
The scope of the function of MM7A as an administative, coodinatin( and polic"-settin( bod" has been settled
in Metropolitan Manila >evelopment Authority BMM>AC v. ;el-Air Villa)e Association" ,nc.
A1
2n that case, the Cout
stessed0
Cleal", the scope of the MM7AWs function is limited to the delive" of the seven >/? basic sevices. 6ne of
these is tr$&'#ort $&/ tr$44%c 9$&$-e9e&t #hich includes the fomulation and monitoin( of policies,
standads and po8ects to ationali5e the e3istin( tanspot opeations, infastuctue e!uiements, the
use of thoou(hfaes and pomotion of the safe movement of pesons and (oods. 2t also coves the9$''
tr$&'#ort '2'te9 and the institution of a s"stem of oad e(ulation, the administation of all taffic
enfocement opeations, taffic en(ineein( sevices and taffic education po(ams, includin( the
institution of a sin(le tic.etin( s"stem in Meto Manila fo taffic violations. <nde this sevice, the MM7A
is e3pessl" authoi5ed to )to set the policies concenin( taffic) and )coodinate and e(ulate the
implementation of all taffic mana(ement po(ams.) 2n addition, the MM7A ma" install and administe a
sin(le tic.etin( s"stem,) fi3, impose and collect fines and penalties fo all taffic violations.
2t #ill be noted that the po#es of the MM7A ae limited to the follo#in( acts0 fomulation, coodination,
e(ulation, implementation, pepaation, mana(ement, monitoin(, settin( of policies, installation of a
s"stem and administation. Thee is no s"llable in R.A. No. /+$A that (ants the MM7A police po#e, let
alone le(islative po#e. Even the Meto Manila Council has not been dele(ated an" le(islative
po#e.U&6%Ee t1e 6e-%'6$t%3e bo/%e' o4 t1e 6oc$6 -o3er&9e&t ,&%t', t1ere %' &o #ro3%'%o& %& R.!. No.
)924 t1$t e9#oDer' t1e MM"! or %t' Co,&c%6 to Te&$ct or/%&$&ce', $##ro3e re'o6,t%o&' $&/
$##ro#r%$te 4,&/' 4or t1e -e&er$6 De64$reO o4 t1e %&1$b%t$&t' o4 Metro M$&%6$. T1e MM"! %', $'
ter9e/ %& t1e c1$rter %t'e64, $ T/e3e6o#9e&t $,t1or%t2.O t %' $& $-e&c2 cre$te/ 4or t1e #,r#o'e o4
1H/
6$2%&- /oD& #o6%c%e' $&/ coor/%&$t%&- D%t1 t1e 3$r%o,' &$t%o&$6 -o3er&9e&t $-e&c%e', #eo#6eO'
or-$&%5$t%o&', &o&--o3er&9e&t$6 or-$&%5$t%o&' $&/ t1e #r%3$te 'ector 4or t1e e44%c%e&t $&/
eB#e/%t%o,' /e6%3er2 o4 b$'%c 'er3%ce' %& t1e 3$'t 9etro#o6%t$& $re$. !66 %t' 4,&ct%o&' $re
$/9%&%'tr$t%3e %& &$t,re $&/ t1e'e $re $ct,$662 ',99e/ ,# %& t1e c1$rter %t'e64, vi50
Z'ECT26N $. Ceation of the Metopolitan Manila 7evelopment Authoit". C . . .
T1e MM"! '1$66 #er4or9 #6$&&%&-, 9o&%tor%&- $&/ coor/%&$t%3e 4,&ct%o&', $&/ %& t1e
#roce'' eBerc%'e re-,6$tor2 $&/ ',#er3%'or2 $,t1or%t2 o3er t1e /e6%3er2 o4 9etro-D%/e
'er3%ce' D%t1%& Metro M$&%6$, #ithout diminution of the autonom" of the local (ovenment units
concenin( puel" local mattes.W
A$
>Emphasis and undescoin( supplied?
2n li(ht of the administative natue of its po#es and functions, the MM7A is devoid of authoit" to implement the
Po8ect as envisioned b" the E.6I hence, it could not have been validl" desi(nated b" the Pesident to undeta.e
the Po8ect. 2t follo#s that the MM7A cannot validl" ode the elimination of espondentsW teminals.
Even the MM7AWs claimed authoit" unde the police po#e must necessail" fail in consonance #ith the above-
!uoted ulin( in MM>A v. ;el-Air Villa)e Association" ,nc. and this CoutWs subse!uent ulin( in Metropolitan
Manila >evelopment Authority v. Garin
A@
that the MM7A is not vested #ith police po#e.
Even assumin( ar)uendo that police po#e #as dele(ated to the MM7A, its e3ecise of such po#e does not
satisf" the t#o tests of a valid police po#e measue, vi50 >1? the inteest of the public (eneall", as distin(uished
fom that of a paticula class, e!uies its e3eciseI and >$? the means emplo"ed ae easonabl" necessa" fo the
accomplishment of the pupose and not undul" oppessive upon individuals.
AA
'tated diffeentl", the police po#e
le(islation must be fiml" (ounded on public inteest and #elfae and a easonable elation must e3ist bet#een
the puposes and the means.
As eal" as (alalan) v. Hilliams,
A%
this Cout eco(ni5ed that taffic con(estion is a public, not meel" a pivate,
concen. The Cout theein held that public #elfae undelies the contested statute authoi5in( the 7iecto of
Public ;o.s to pomul(ate ules and e(ulations to e(ulate and contol taffic on national oads.
=i.e#ise, in Lu2ue v. Ville)as,
A&
this Cout emphasi5ed that public #elfae lies at the bottom of an" e(ulato"
measue desi(ned )to elieve con(estion of taffic, #hich is, to sa" the least, a menace to public safet".)
A/
As
such, measues calculated to pomote the safet" and convenience of the people usin( the thoou(hfaes b" the
e(ulation of vehicula taffic pesent a pope sub8ect fo the e3ecise of police po#e.
Notabl", the paties heein concede that taffic con(estion is a public concen that needs to be addessed
immediatel". 2ndeed, the E.6. #as issued due to the felt need to addess the #osenin( taffic con(estion in Meto
Manila #hich, the MM7A so detemined, is caused b" the inceasin( volume of buses pl"in( the ma8o
thoou(hfaes and the inefficient connectivit" of e3istin( tanspot s"stems. 2t is thus be"ond cavil that the
motivatin( foce behind the issuance of the E.6. is the inteest of the public in (eneal.
Ae the means emplo"ed appopiate and easonabl" necessa" fo the accomplishment of the pupose. Ae the"
not dul" oppessive4
;ith the avo#ed ob8ective of decon(estin( taffic in Meto Manila, the E.6. see.s to )eliminateFeG the bus
teminals no# located alon( ma8o Meto Manila thoou(hfaes and povidFeG moe convenient access to the mass
tanspot s"stem to the commutin( public thou(h the povision of mass tanspot teminal facilities 3 3
3.)
AH
Common caies #ith teminals alon( the ma8o thoou(hfaes of Meto Manila #ould thus be compelled to
close do#n thei e3istin( bus teminals and use the MM7A-desi(nated common pa.in( aeas.
2n Lucena Grand (entral 8erminal" ,nc. v. 6A( Liner" ,nc.,
A+
t#o cit" odinances #ee passed b" the'an))unian)
anlun)sod of =ucena, diectin( public utilit" vehicles to unload and load passen(es at the =ucena -and
1HH
Cental Teminal, #hich #as (iven the e3clusive fanchise to opeate a sin(le common teminal. 7eclain( that no
othe teminals shall be situated, constucted, maintained o established inside o #ithin the cit" of =ucena,
the san))unian declaed as inopeable all tempoa" teminals theein.
The odinances #ee challen(ed befoe this Cout fo bein( unconstitutional on the (ound that, inter alia, the
measues constituted an invalid e3ecise of police po#e, an undue ta.in( of pivate popet", and a violation of
the constitutional pohibition a(ainst monopolies.
Citin( >e la (ruz v. aras
%*
and Lupan)co v. (ourt of Appeals,
%1
this Cout held that the assailed odinances #ee
chaactei5ed b" ovebeadth, as the" #ent be"ond #hat #as easonabl" necessa" to solve the taffic poblem in
the cit". And it found that the compulso" use of the =ucena -and Teminal #as undul" oppessive because it
#ould sub8ect its uses to fees, entals and cha(es.
The tue ole of Constitutional =a# is to effect an e!uilibium bet#een authoit" and libet" so that i(hts
ae e3ecised #ithin the fame#o. of the la# and the la#s ae enacted #ith due defeence to i(hts.
A due defeence to the i(hts of the individual thus e!uies a moe caeful fomulation of solutions to
societal poblems.
,om the memoandum filed befoe this Cout b" petitione, it is (atheed that the 'an((unian(
Panlun(sod had identified the cause of taffic con(estion to be the indisciminate loadin( and unloadin( of
passen(es b" buses on the steets of the cit" pope, hence, the conclusion that the teminals
contibuted to the polifeation of buses obstuctin( taffic on the cit" steets.
Bus teminals pe se do not, ho#eve, impede o help impede the flo# of taffic. HoD t1e o,tr%-1t
#ro'cr%#t%o& $-$%&'t t1e eB%'te&ce o4 $66 ter9%&$6', $#$rt 4ro9 t1$t 4r$&c1%'e/ to #et%t%o&er, c$& be
co&'%/ere/ $' re$'o&$b62 &ece''$r2 to 'o63e t1e tr$44%c #rob6e9, t1%' Co,rt 1$' &ot bee&
e&6%-1te&e/. 2f teminals lac. ade!uate space such that bus dives ae compelled to load and unload
passen(es on the steets instead of inside the teminals, then easonable specifications fo the si5e of
teminals could be instituted, #ith pemits to opeate the same denied those #hich ae unable to meet the
specifications.
& t1e ',bFect or/%&$&ce', 1oDe3er, t1e 'co#e o4 t1e #ro'cr%#t%o& $-$%&'t t1e 9$%&te&$&ce o4
ter9%&$6' %' 'o bro$/ t1$t e3e& e&t%t%e' D1%c1 9%-1t be $b6e to #ro3%/e 4$c%6%t%e' better t1$& t1e
4r$&c1%'e/ ter9%&$6 $re b$rre/ 4ro9 o#er$t%&- $t $66. >Emphasis and undescoin( supplied?
As in Lucena, this Cout fails to see ho# the pohibition a(ainst the e3istence of espondentsW teminals can be
consideed a easonable necessit" to ease taffic con(estion in the metopolis. 6n the conta", the elimination of
espondentsW bus teminals bin(s foth the distinct possibilit" and the e!uall" hao#in( ealit" of taffic
con(estion in the common pa.in( aeas, a case of tansfeence fom one site to anothe.
=ess intusive measues such as cubin( the polifeation of )coloum) buses, vans and ta3is entein( Meto
Manila and usin( the steets fo pa.in( and passen(e pic.-up points, as espondents su((est, mi(ht even be
moe effective in easin( the taffic situation. 'o #ould the stict enfocement of taffic ules and the emoval of
obstuctions fom ma8o thoou(hfaes.
As to the alle(ed confiscato" chaacte of the E.6., it need onl" to be stated that espondentsW cetificates of
public convenience confe no popet" i(ht, and ae mee licenses o pivile(es.
%$
As such, these must "ield to
le(islation safe(uadin( the inteest of the people.
Even then, fo easons #hich bea eiteation, the MM7A cannot ode the closue of espondentsW teminals not
onl" because no authoit" to implement the Po8ect has been (anted no le(islative o police po#e been
1H+
dele(ated to it, but also because the elimination of the teminals does not satisf" the standads of a valid police
po#e measue.
,inall", an ode fo the closue of espondentsW teminals is not in line #ith the povisions of the Public 'evice
Act.
Paa(aph >a?, 'ection 1@ of Chapte 22 of the Public 'evice Act >no# 'ection % of E3ecutive 6de No. $*$,
ceatin( the =and Tanspotation ,anchisin( and Re(ulato" Boad o =,TRB? vested the Public 'evice
Commission >P'C, no# the =T,RB? #ith )3 3 3 8uisdiction, supevision and contol ove all public sevices and
thei fanchises, e!uipment and othe popeties 3 3 3.)
Consonant #ith such (ant of authoit", the P'C #as empo#eed to )%9#o'e ',c1 co&/%t%o&' $' to
co&'tr,ct%o&, eI,%#9e&t, 9$%&te&$&ce, 'er3%ce, o opeation as the public inteests and convenience ma"
easonabl" e!uie)
%@
in appovin( an" fanchise o pivile(e.
,uthe, 'ection 1& >(? and >h? of the Public 'evice Act
%A
povided that the Commission shall have the po#e,
upon pope notice and heain( in accodance #ith the ules and povisions of this Act, sub8ect to the limitations
and e3ceptions mentioned and savin( povisions to the conta"0
>(? To compel an" public sevice to 4,r&%'1 '$4e, $/eI,$te, $&/ #ro#er 'er3%ce as e(ads the manne
of funishin( the same as #ell as the maintenance of the necessa" mateial and e!uipment.
>h? To e!uie an" public sevice to e't$b6%'1, co&'tr,ct, 9$%&t$%&, $&/ o#er$te $&2 re$'o&$b6e
eBte&'%o& o4 %t' eB%'t%&- 4$c%6%t%e', #hee in the 8ud(ment of said Commission, such e3tension is
easonable and pacticable and #ill funish sufficient business to 8ustif" the constuction and maintenance
of the same and #hen the financial condition of the said public sevice easonabl" #aants the oi(inal
e3penditue e!uied in ma.in( and opeatin( such e3tension.>Emphasis and undescoin( supplied?
The establishment, as #ell as the maintenance of vehicle pa.in( aeas o passen(e teminals, is (eneall"
consideed a necessa" sevice to be povided b" povincial bus opeatos li.e espondents, hence, the
investments the" have poued into the ac!uisition o lease of suitable teminal sites. Eliminatin( the teminals
#ould thus un counte to the povisions of the Public 'evice Act.
This Cout commiseates #ith the MM7A fo the oadbloc.s tho#n in the #a" of its effots at solvin( the
pestein( poblem of taffic con(estion in Meto Manila. These effots ae commendable, to sa" the least, in the
face of the abominable taffic situation of ou oads da" in and da" out. This Cout can onl" intepet, not chan(e,
the la#, ho#eve. 2t needs onl" to be eiteated that %t %' t1e "OTC ^ as the pima" polic", plannin(,
po(ammin(, coodinatin(, implementin(, e(ulatin( and administative entit" to pomote, develop and e(ulate
net#o.s of tanspotation and communications ^ D1%c1 1$' t1e #oDer to e't$b6%'1 $&/ $/9%&%'ter $
tr$&'#ort$t%o& #roFect 6%Ee t1e ProFect ',bFect o4 t1e c$'e $t b$r.
No matte ho# noble the intentions of the MM7A ma" be then, an" plan, state(" o po8ect #hich it is not
authoi5ed to implement cannot pass muste.
:HEREFORE, the Petition is, in li(ht of the foe(oin( dis!uisition, "ENE". E.O. No. 1)9 %' /ec6$re/ NULL $&/
7O" 4or be%&- ultra !ires.
'6 6R7ERE7.
uno" (.6." Fuisumbin)" 9nares-'antia)o" 'andoval-Gutierrez" (arpio" Austria-Martinez" (orona" Azcuna" 8in)a"
(hico-Nazario" Garcia" Velasco" 6r." Nachura" Reyes" 66." concu.
1+*
Republic of the Philippines
S,#re9e Co,rt
Manila
EN 0!NC
EMLO G!NC!;CO,
Petitione,
- vesus -
CT; GO7ERNMENT OF =UE(ON CT; !N"
METRO M!NL!"E7ELOPMENT !UTHORT;,
Respondents.
3-----------------------------------------------3
METRO M!NL! "E7ELOPMENT !UTHORT;,
Petitione,
-vesus-
.USTCE EMLO !. G!NC!;CO LRet%re/M,
Respondent,
3-----------------------------------------3
G.R. No. 1))8*)
G.R. No. 1))933
Pesent0
C6R6NA, (.6.,
CARP26,
EE=A'C6, BR.,
=E6NAR76-7E CA'TR6,
BR26N,
PERA=TA,
BER'AM2N,
_
7E= CA'T2==6,
__
ABA7,
E2==ARAMA, BR.,
PEREJ,
_
MEN76JA,
'EREN6,
REKE', and
PER=A'-BERNABE, 66.
Pomul(ated0
6ctobe 11, $*11
1+1
B - - - - - - - - - - - - - - - - - - -- - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - B
"ECSON
SERENO, J.A
Befoe us ae consolidated Petitions fo Revie# unde Rule A% of the Rules of Cout assailin( the
7ecision
F1G
pomul(ated on 1H Bul" $**& and the Resolution
F$G
dated 1* Ma" $**/of the Cout of Appeals in CA-
-.R. 'P No. HA&AH.
T1e F$ct'
2n the eal" 1+%*s, etied Bustice Emilio A. -anca"co bou(ht a pacel of land located at /A&
Epifanio delos 'antos Avenue >E7'A?,
F@G
Oue5on Cit" #ith an aea of @/% s!uae metes and coveed b" Tansfe
Cetificate of Title >TCT? No. RT11A%%H.
6n $/ Mach 1+%&, the Oue5on Cit" Council issued 6dinance No. $+*A, entitled XAn 6dinance
Re!uiin( the Constuction of Acades, fo Commecial Buildin(s to be Constucted in Jones 7esi(nated as
Business Jones in the Jonin( Plan of Oue5on Cit", and Povidin( Penalties in Eiolation Theeof.Y
FAG
An acade is defined as an" potion of a buildin( above the fist floo po8ectin( ove the side#al. be"ond
the fist stoe" #all used as potection fo pedestians a(ainst ain o sun.
F%G
6dinance No. $+*A e!uied the elevant popet" o#ne to constuct an acade #ith a #idth of A.%*
metes and hei(ht of %.** metes alon( E7'A, fom the noth side of 'antolan Road to one lot afte =ibet"
Avenue, and fom one lot befoe Cental Boulevad to the Botocan tansmission line.
At the outset, it beas emphasis that at the time 6dinance No. $+*A #as passed b" the cit" council, thee
#as "et no buildin( code passed b" the national le(islatue. Thus, the e(ulation of the constuction of buildin(s
#as left to the discetion of local (ovenment units. <nde this paticula odinance, the cit" council e!uied that
the acade is to be ceated b" constuctin( the #all of the (ound floo facin( the side#al. a fe# metes a#a"
fom the popet" line. Thus, the buildin( o#ne is not allo#ed to constuct his #all up to the ed(e of the popet"
line, theeb" ceatin( a space o shelte unde the fist floo. 2n effect, popet" o#nes elin!uish the use of the
space fo use as an acade fo pedestians, instead of usin( it fo thei o#n puposes.
The odinance #as amended seveal times. 6n H Au(ust 1+&*, popeties located at the Oue5on Cit"-
'an Buan bounda" #ee e3empted b" 6dinance No. &*-AA// fom the constuction of acades. This odinance
#as futhe amended b" 6dinance No. &*-A%1@, e3tendin( the e3emption to commecial buildin(s fom Balete
'teet to 'eattle 'teet. 6dinance No. &&*@ dated 1 Mach 1+&& mean#hile educed the #idth of the acades to
thee metes fo buildin(s alon( E. =una Road, Cental 7istict, Oue5on Cit".
The odinance coveed the popet" of Bustice -anca"co. 'ubse!uentl", sometime in 1+&%, Bustice
-anca"co sou(ht the e3emption of a t#o-stoe" buildin( bein( constucted on his popet" fom the application of
6dinance No. $+*A that he be e3empted fom constuctin( an acade on his popet".
6n $ ,ebua" 1+&&, the Cit" Council acted favoabl" on Bustice -anca"coWs e!uest and issued
Resolution No. /1&1, '-&&, Xsub8ect to the condition that upon notice b" the Cit" En(inee, the o#ne shall, #ithin
easonable time, demolish the enclosue of said acade at his o#n e3pense #hen public inteest so demands.Y
F&G
7ecades afte, in Mach $**@, the Metopolitan Manila 7evelopment Authoit" >MM7A? conducted
opeations to clea obstuctions alon( the side#al. of E7'A in Oue5on Cit" pusuant to Meto Manila CouncilWs
>MMC? Resolution No. *$-$H, 'eies of $**$.
F/G
The esolution authoi5ed the MM7A and local (ovenment units
to Xclea the side#al.s, steets, avenues, alle"s, bid(es, pa.s and othe public places in Meto Manila of all
ille(al stuctues and obstuctions.Y
FHG
1+$
6n $H Apil $**@, the MM7A sent a notice of demolition to Bustice -anca"co alle(in( that a potion of his
buildin( violated the National Buildin( Code of the Philippines >Buildin( Code?
F+G
in elation to 6dinance No. $+*A.
The MM7A (ave Bustice -anca"co fifteen >1%? da"s to clea the potion of the buildin( that #as supposed to be
an acade alon( E7'A.
F1*G
Bustice -anca"co did not compl" #ith the notice. 'oon afte the lapse of the fifteen >1%? da"s, the MM7A
poceeded to demolish the pat" #all, o #hat #as efeed to as the X#in( #alls,Y of the (ound floo stuctue.
The ecods of the pesent case ae not entiel" clea on the e3tent of the demolitionI nevetheless, the fact of
demolition #as not disputed. At the time of the demolition, the affected potion of the buildin( #as bein( used as a
estauant.
6n $+ Ma" $**@, Bustice -anca"co filed a Petition
F11G
#ith pa"e fo a tempoa" estainin( ode andLo
#it of pelimina" in8unction befoe the Re(ional Tial Cout >RTC? ofOue5on Cit", doc.eted as Civil Case No.
O*@-A+&+@, see.in( to pohibit the MM7A and the Cit" -ovenment of Oue5on Cit" fom demolishin( his
popet". 2n his Petition,
F1$G
he alle(ed that the odinance authoi5ed the ta.in( of pivate popet" #ithout due
pocess of la# and 8ust compensation, because the constuction of an acade #ill e!uie &/.% s!uae metes fom
the @/% s!uae mete popet". 2n addition, he claimed that the odinance #as selective and disciminato" in its
scope and application #hen it allo#ed the o#nes of the buildin(s located in the Oue5on Cit"-'an Buan bounda"
to Cubao Rotonda, and Balete to 'eattle 'teets to constuct acades at thei option. 1e thus sou(ht the
declaation of nullit" of 6dinance No. $+*A and the pa"ment of dama(es. Altenatel", he pa"ed fo the pa"ment
of 8ust compensation should the cout hold the odinance valid.
The Cit" -ovenment of Oue5on Cit" claimed that the odinance #as a valid e3ecise of police po#e,
e(ulatin( the use of popet" in a business 5one. 2n addition, it pointed out that Bustice -anca"co #as alead"
baed b" estoppel, laches and pesciption.
'imilal", the MM7A alle(ed that Bustice -anca"co could not see. the nullification of an odinance that he
had alead" violated, and that the odinance en8o"ed the pesumption of constitutionalit". 2t futhe stated that the
!uestioned popet" #as a public nuisance impedin( the safe passa(e of pedestians. ,inall", the MM7A claimed
that it #as meel" implementin( the le(al easement established b" 6dinance No. $+*A.
F1@G
The RTC endeed its 7ecision on @* 'eptembe $**@ in favo of Bustice -anca"co.
F1AG
2t held that the
!uestioned odinance #as unconstitutional, ulin( that it allo#ed the ta.in( of pivate popet" fo public use
#ithout 8ust compensation. The RTC said that because &/.% s!uae metes out of Bustice -anca"coWs @/% s!uae
metes of popet" #ee bein( ta.en #ithout compensation fo the publicWs benefit, the odinance #as confiscato"
and oppessive. 2t li.e#ise held that the odinance violated o#nesW i(ht to e!ual potection of la#s. The
dispositive potion thus states0
:HEREFORE, the petition is heeb" (anted and the Cout heeb" declaes Oue5on Cit"
6dinance No. $*+A,
F1%G
'eies of 1+%& to be unconstitutional, invalid and void ab initio. The
espondents ae heeb" pemanentl" en8oined fom enfocin( and implementin( the said
odinance, and the espondent MM7A is heeb" diected to immediatel" estoe the potion of the
pat" #all o #in( #all of the buildin( of the petitione it desto"ed to its oi(inal condition.
2T 2' '6 6R7ERE7.
The MM7A theeafte appealed fom the 7ecision of the tial cout. 6n 1H Bul" $**&, the Cout of Appeals
>CA? patl" (anted the appeal.
F1&G
The CA upheld the validit" of 6dinance No. $+*A and lifted the in8unction
a(ainst the enfocement and implementation of the odinance. 2n so doin(, it held that the odinance #as a valid
e3ecise of the i(ht of the local (ovenment unit to pomote the (eneal #elfae of its constituents pusuant to its
police po#es. The CA also uled that the odinance established a valid classification of popet" o#nes #ith
e(ad to the constuction of acades in thei espective popeties dependin( on the location. The CA futhe
stated that thee #as no ta.in( of pivate popet", since the o#ne still en8o"ed the beneficial o#neship of the
popet", to !it0
1+@
Even #ith the e!uiement of the constuction of acaded side#al.s #ithin his commecial
lot, appellee still etains the beneficial o#neship of the said popet". Thus, thee is no Xta.in(Y
fo public use #hich must be sub8ect to 8ust compensation. ;hile the acaded side#al.s
contibute to the public (ood, fo povidin( safet" and comfot to passesb", the ultimate benefit
fom the same still edounds to appellee, his commecial establishment bein( at the foefont of a
bus" thoou(hfae li.e E7'A. The acaded side#al.s, b" thei natue, assue clients of the
commecial establishments theeat some .ind of potection fom accidents and othe ha5ads.
;ithout doubt, this sense of potection can be a boon to the business activit" theein en(a(ed.
F1/G
Nevetheless, the CA held that the MM7A #ent be"ond its po#es #hen it demolished the sub8ect
popet". 2t futhe found that Resolution No. *$-$H onl" efes to side#al.s, steets, avenues, alle"s, bid(es,
pa.s and othe public places in Meto Manila, thus e3cludin( Bustice -anca"coWs pivate popet". =astl", the CA
stated that the MM7A is not clothed #ith the authoit" to declae, pevent o abate nuisances. Thus, the
dispositive potion stated0
:HEREFORE, the appeals ae P!RTL; GR!NTE". The >ecision dated 'eptembe @*,
$**@ of the Re(ional Tial Cout, Banch $$A, Oue5on Cit", is MO"FE", as follo#s0
1? The validit" and constitutionalit" of 6dinance No. $*+A,
F1HG
'eies of 1+%&, issued b" the Cit"
Council of Oue5on Cit", is UPHEL"I and
$? The in8unction a(ainst the enfocement and implementation of the said 6dinance is LFTE".
SO OR"ERE".
This ulin( pompted the MM7A and Bustice -anca"co to file thei espective Motions fo Patial
Reconsideation.
F1+G
6n 1* Ma" $**/, the CA denied the motions statin( that the paties did not pesent ne# issues no offe
(ounds that #ould meit the econsideation of the Cout.
F$*G
7issatisfied #ith the ulin( of the CA, Bustice -anca"co and the MM7A filed thei espective Petitions fo
Revie# befoe this Cout. The issues aised b" the paties ae summai5ed as follo#s0
2. ;1ET1ER 6R N6T B<'T2CE -ANCAKC6 ;A' E'T6PPE7 ,R6M A''A2=2N- T1E
EA=272TK 6, 6R72NANCE N6. $+*A.
22. ;1ET1ER 6R N6T 6R72NANCE N6. $+*A 2' C6N'T2T<T26NA=.
222. ;1ET1ER 6R N6T T1E ;2N- ;A== 6, B<'T2CE -ANCAKC6W' B<2=72N- 2' A P<B=2C
N<2'ANCE.
2E. ;1ET1ER 6R N6T T1E MM7A =E-A==K 7EM6=2'1E7 T1E PR6PERTK 6, B<'T2CE
-ANCAKC6.
T1e Co,rtO' R,6%&-
#stoppel
The MM7A and the Cit" -ovenment of Oue5on Cit" both claim that Bustice -anca"co #as estopped fom
challen(in( the odinance, because, in 1+&%, he as.ed fo an e3emption fom the application of the
odinance. Accodin( to them, Bustice -anca"co theeb" eco(ni5ed the po#e of the cit" (ovenment to e(ulate
the constuction of buildin(s.
To ecall, Bustice -anca"co !uestioned the constitutionalit" of the odinance on t#o (ounds0 >1? #hethe
the odinance Xta.esY pivate popet" #ithout due pocess of la# and 8ust compensationI and >$? #hethe the
odinance violates the e!ual potection of i(hts because it allo#ed e3emptions fom its application.
1+A
6n the fist (ound, #e find that Bustice -anca"co ma" still !uestion the constitutionalit" of the odinance
to detemine #hethe o not the odinance constitutes a Xta.in(Y of pivate popet" #ithout due pocess of la# and
8ust compensation. 2t #as onl" in $**@ #hen he #as alle(edl" depived of his popet" #hen the MM7A
demolished a potion of the buildin(. Because he #as (anted an e3emption in 1+&&, thee #as no Xta.in(Y "et to
spea. of.
Moeove, in Acebedo 5ptical (ompany" ,nc. v. (ourt of Appeals"
F$1G
#e held0
2t is theefoe decisivel" clea that estoppel cannot appl" in this case. The fact that
petitione ac!uiesced in the special conditions imposed b" the Cit" Ma"o in sub8ect business
pemit does not peclude it fom challen(in( the said imposition, #hich is ultra vires o be"ond the
ambit of authoit" of espondent Cit" Ma"o. Bltra !ires $ct' or $ct' D1%c1 $re c6e$r62 be2o&/
t1e 'co#e o4 o&eK' $,t1or%t2 $re &,66 $&/ 3o%/ $&/ c$&&ot be -%3e& $&2 e44ect. T1e /octr%&e
o4 e'to##e6 c$&&ot o#er$te to -%3e e44ect to $& $ct D1%c1 %' ot1erD%'e &,66 $&/ 3o%/ or ultra
!ires. >Emphasis supplied.?
Recentl", in ;ritish American 8obacco v. (amacho,
F$$G
#e li.e#ise held0
;e find that petitione #as not (uilt" of estoppel. ;hen it made the undeta.in( to
compl" #ith all issuances of the B2R, #hich at that time it consideed as valid, petitione did not
commit an" false misepesentation o misleadin( act. 2ndeed, petitione cannot be faulted fo
initiall" undeta.in( to compl" #ith, and sub8ectin( itself to the opeation of 'ection 1A%>C?, and
onl" late on filin( the sub8ect case pa"in( fo the declaation of its unconstitutionalit" #hen the
cicumstances chan(e and the la# esults in #hat it peceives to be unla#ful discimination. T1e
9ere 4$ct t1$t $ 6$D 1$' bee& re6%e/ ,#o& %& t1e #$'t $&/ $66 t1$t t%9e 1$' &ot bee&
$tt$cEe/ $' ,&co&'t%t,t%o&$6 %' &ot $ -ro,&/ 4or co&'%/er%&- #et%t%o&er e'to##e/ 4ro9
$''$%6%&- %t' 3$6%/%t2. For co,rt' D%66 #$'' ,#o& $ co&'t%t,t%o&$6 I,e't%o& o&62 D1e&
#re'e&te/ be4ore %t %& &ona fide c$'e' 4or /eter9%&$t%o&, $&/ t1e 4$ct t1$t t1e I,e't%o& 1$'
&ot bee& r$%'e/ be4ore %' &ot $ 3$6%/ re$'o& 4or re4,'%&- to $66oD %t to be r$%'e/ 6$ter.
>Emphasis supplied.?
Anent the second (ound, #e find that Bustice -anca"co ma" not !uestion the odinance on the (ound
of e!ual potection #hen he also benefited fom the e3emption. 2t beas emphasis that Bustice -anca"co himself
e!uested fo an e3emption fom the application of the odinance in 1+&% and #as eventuall" (anted one.
Moeove, he #as still en8o"in( the e3emption at the time of the demolition as thee #as "et no valid notice fom
the cit" en(inee. Thus, #hile the odinance ma" be attac.ed #ith e(ad to its diffeent teatment of popeties
that appeas to be similal" situated, Bustice -anca"co is not the pope peson to do so.
Coning and the regulation of the
construction of &uildings are !alid
e,ercises of police po"er .
2n MM>A v. ;el-Air Villa)e Association"
F$@G
#e discussed the natue of police po#es e3ecised b" local
(ovenment units, to !it0
Police po#e is an inheent attibute of soveei(nt". 2t has been defined as the po#e
vested b" the Constitution in the le(islatue to ma.e, odain, and establish all manne of
#holesome and easonable la#s, statutes and odinances, eithe #ith penalties o #ithout, not
epu(nant to the Constitution, as the" shall 8ud(e to be fo the (ood and #elfae of the
common#ealth, and fo the sub8ects of the same. The po#e is plena" and its scope is vast and
pevasive, eachin( and 8ustif"in( measues fo public health, public safet", public moals, and
the (eneal #elfae.
2t beas stessin( that police po#e is lod(ed pimail" in the National =e(islatue. 2t
cannot be e3ecised b" an" (oup o bod" of individuals not possessin( le(islative po#e. The
1+%
National =e(islatue, ho#eve, ma" dele(ate this po#e to the Pesident and administative
boads as #ell as the la#ma.in( bodies of municipal copoations o local (ovenment units.
6nce dele(ated, the a(ents can e3ecise onl" such le(islative po#es as ae confeed on them
b" the national la#ma.in( bod".
To esolve the issue on the constitutionalit" of the odinance, #e must fist detemine #hethe thee #as a
valid dele(ation of police po#e. Then #e can detemine #hethe the Cit" -ovenment of Oue5on Cit" acted
#ithin the limits of the dele(ation.
2t is clea that Con(ess e3pessl" (anted the cit" (ovenment, thou(h the cit" council, police po#e b"
vitue of 'ection 1$>oo? of Republic Act No. %@/, o the Revised Chate of Oue5on Cit",
F$AG
#hich states0
To ma.e such futhe odinances and e(ulations not epu(nant to la# as ma" be
necessa" to ca" into effect and discha(e the po#es and duties confeed b" this Act and such
as it shall deem necessa" and pope to povide fo the health and safet", pomote the
pospeit", impove the moals, peace, (ood ode, comfot, and convenience of the cit" and the
inhabitants theeof, and fo the potection of popet" theeinI and enfoce obedience theeto #ith
such la#ful fines o penalties as the Cit" Council ma" pescibe unde the povisions of
subsection >88? of this section.
'pecificall", on the po#es of the cit" (ovenment to e(ulate the constuction of buildin(s, the Chate
also e3pessl" povided that the cit" (ovenment had the po#e to e(ulate the .inds of buildin(s and stuctues
that ma" be eected #ithin fie limits and the manne of constuctin( and epaiin( them.
F$%G
;ith e(ad mean#hile to the po#e of the local (ovenment units to issue 5onin( odinances, #e
appl" 'ocial 6ustice 'ociety v. Atienza.
F$&G
2n that case, the 'an))unian) anlun)sod of Manila Cit" enacted an
odinance on $H Novembe $**1 eclassif"in( cetain aeas of the cit" fom industial to commecial. As a esult
of the 5onin( odinance, the oil teminals located in those aeas #ee no lon(e allo#ed. Thou(h the oil
companies contended that the" stood to lose billions of pesos, this Cout upheld the po#e of the cit" (ovenment
to pass the assailed odinance, statin(0
2n the e3ecise of police po#e, popet" i(hts of individuals ma" be sub8ected to
estaints and budens in ode to fulfil the ob8ectives of the (ovenment. 6the#ise stated, t1e
-o3er&9e&t 9$2 e&$ct 6e-%'6$t%o& t1$t 9$2 %&ter4ere D%t1 #er'o&$6 6%bert2, #ro#ert2, 6$D4,6
b,'%&e''e' $&/ occ,#$t%o&' to #ro9ote t1e -e&er$6 De64$re.
HoDe3er, t1e %&ter4ere&ce
9,'t be re$'o&$b6e $&/ &ot $rb%tr$r2. !&/ to 4ore't$66 $rb%tr$r%&e'', t1e 9et1o/' or 9e$&'
,'e/ to #rotect #,b6%c 1e$6t1, 9or$6', '$4et2 or De64$re 9,'t 1$3e $ re$'o&$b6e re6$t%o& to
t1e e&/ %& 3%eD.
The means adopted b" the 'an))unian #as the enactment of a 5onin( odinance #hich
eclassified the aea #hee the depot is situated fom industial to commecial. ! 5o&%&-
or/%&$&ce %' /e4%&e/ $' $ 6oc$6 c%t2 or 9,&%c%#$6 6e-%'6$t%o& D1%c1 6o-%c$662 $rr$&-e',
#re'cr%be', /e4%&e' $&/ $##ort%o&' $ -%3e& #o6%t%c$6 ',b/%3%'%o& %&to '#ec%4%c 6$&/ ,'e' $'
#re'e&t $&/ 4,t,re #roFect%o& o4 &ee/'. As a esult of the 5onin(, the continued opeation of
the businesses of the oil companies in thei pesent location #ill no lon(e be pemitted. T1e
#oDer to e't$b6%'1 5o&e' 4or %&/,'tr%$6, co99erc%$6 $&/ re'%/e&t%$6 ,'e' %' /er%3e/ 4ro9
t1e #o6%ce #oDer %t'e64 $&/ %' eBerc%'e/ 4or t1e #rotect%o& $&/ be&e4%t o4 t1e re'%/e&t' o4 $
6oc$6%t2. Conse!uentl", the enactment of 6dinance No. H*$/ is #ithin the po#e of
the 'an))unian) anlun)sod of the Cit" of Manila and an" esultin( buden on those affected
cannot be said to be un8ust... >Emphasis supplied?
2n (arlos 'uperdru) v. >epartment of 'ocial Helfare and >evelopment"
D)1E
#e also held0
,o this eason, #hen the conditions so demand as detemined b" the
le(islatue, #ro#ert2 r%-1t' 9,'t boD to t1e #r%9$c2 o4 #o6%ce #oDer bec$,'e #ro#ert2
r%-1t', t1o,-1 '1e6tere/ b2 /,e #roce'', 9,'t 2%e6/ to -e&er$6 De64$re.
1+&
Po6%ce #oDer $' $& $ttr%b,te to #ro9ote t1e co99o& -oo/ Do,6/ be /%6,te/
co&'%/er$b62 %4 o& t1e 9ere #6e$ o4 #et%t%o&er' t1$t t1e2 D%66 ',44er 6o'' o4 e$r&%&-' $&/
c$#%t$6, t1e I,e't%o&e/ #ro3%'%o& %' %&3$6%/$te/. Moreo3er, %& t1e $b'e&ce o4 e3%/e&ce
/e9o&'tr$t%&- t1e $66e-e/ co&4%'c$tor2 e44ect o4 t1e #ro3%'%o& %& I,e't%o&, t1ere %' &o
b$'%' 4or %t' &,66%4%c$t%o& %& 3%eD o4 t1e #re',9#t%o& o4 3$6%/%t2 D1%c1 e3er2 6$D 1$' %& %t'
4$3or. >Emphasis supplied.?
2n the case at ba, it is clea that the pima" ob8ectives of the cit" council of Oue5on Cit" #hen it issued
the !uestioned odinance odein( the constuction of acades #ee the health and safet" of the cit" and its
inhabitantsI the pomotion of thei pospeit"I and the impovement of thei moals, peace, (ood ode, comfot,
and the convenience. These acades povide safe and convenient passa(e alon( the side#al. fo commutes and
pedestians, not 8ust the esidents of Oue5on Cit". Moe especiall" so because the contested potion of the
buildin( is located on a bus" se(ment of the cit", in a business 5one alon( E7'A.
Coollail", the polic" of the Buildin( Code,
F$HG
#hich #as passed afte the Oue5on Cit" 6dinance,
suppots the pupose fo the enactment of 6dinance No. $+*A. The Buildin( Code states0
'ection 1*$. 7eclaation of Polic". M 2t is heeb" declaed to be the polic" of the 'tate to
safe(uad life, health, popet", and public #elfae, consistent #ith the pinciples of sound
envionmental mana(ement and contolI and to this end, ma.e it the pupose of this Code to
povide fo all buildin(s and stuctues, a fame#o. of minimum standads and e!uiements to
e(ulate and contol thei location, site, desi(n !ualit" of mateials, constuction, occupanc", and
maintenance.
'ection 1**A li.e#ise e!uies the constuction of acades #heneve e3istin( o 5onin( odinances
e!uie it. Appaentl", the la# allo#s the local (ovenment units to detemine #hethe acades ae necessa"
#ithin thei espective 8uisdictions.
Bustice -anca"co a(ues that thee is a thee-mete side#al. in font of his popet" line, and the acade
should be constucted above that side#al. athe than #ithin his popet" line. ;e do not need to addess this
a(ument inasmuch as it aises the issue of the #isdom of the cit" odinance, a matte #e #ill not and need not
delve into.
To eiteate, at the time that the odinance #as passed, thee #as no national buildin( code enfoced to
(uide the cit" councilI thus, thee #as no la# of national application that pohibited the cit" council fom e(ulatin(
the constuction of buildin(s, acades and side#al.s in thei 8uisdiction.
*he :"ing "alls< of the &uilding are not
nuisances #er 'e.
The MM7A claims that the potion of the buildin( in !uestion is a nuisance per se.
;e disa(ee.
The fact that in 1+&& the Cit" Council (ave Bustice -anca"co an e3emption fom constuctin( an acade
is an indication that the #in( #alls of the buildin( ae not nuisances per se. The #in( #alls do not per
se immediatel" and advesel" affect the safet" of pesons and popet". The fact that an odinance ma" declae a
stuctue ille(al does not necessail" ma.e that stuctue a nuisance.
Aticle &+A of the Civil Code defines nuisance as an" act, omission, establishment, business, condition o
popet", o an"thin( else that >1? in8ues o endan(es the health o safet" of othesI >$? anno"s o offends the
sensesI >@? shoc.s, defies o dise(ads decenc" o moalit"I >A? obstucts o intefees #ith the fee passa(e of
an" public hi(h#a" o steet, o an" bod" of #ateI o, >%? hindes o impais the use of popet". A nuisance ma"
1+/
be per se o per accidens. A nuisance per se is that #hich affects the immediate safet" of pesons and popet"
and ma" summail" be abated unde the undefined la# of necessit".
F$+G
Cleal", #hen Bustice -anca"co #as (iven a pemit to constuct the buildin(, the cit" council o the cit"
en(inee did not conside the buildin(, o its demolished potion, to be a theat to the safet" of pesons and
popet". This fact alone should have #aned the MM7A a(ainst summail" demolishin( the stuctue.
Neithe does the MM7A have the po#e to declae a thin( a nuisance. 6nl" couts of la# have the po#e
to detemine #hethe a thin( is a nuisance. 2n A( Enterprises v. :rabelle roperties (orp.,
F@*G
#e held0
;e a(ee #ith petitione:s contention that, unde 'ection AA/>a?>@?>i? of R.A. No. /1&*,
othe#ise .no#n as the =ocal -ovenment Code, the 'an))unian) an)lun)sod is empo#eed
to enact odinances declain(, peventin( o abatin( noise and othe foms of nuisance. 2t beas
stessin(, ho#eve, that the 'an))unian) ;ayan cannot declae a paticula thin( as a
nuisance per se and ode its condemnation. t /oe' &ot 1$3e t1e #oDer to 4%&/, $' $ 4$ct, t1$t
$ #$rt%c,6$r t1%&- %' $ &,%'$&ce D1e& ',c1 t1%&- %' &ot $ &,%'$&ce per seH &or c$& %t
$,t1or%5e t1e eBtr$F,/%c%$6 co&/e9&$t%o& $&/ /e'tr,ct%o& o4 t1$t $' $ &,%'$&ce D1%c1 %& %t'
&$t,re, '%t,$t%o& or ,'e %' &ot ',c1. T1o'e t1%&-' 9,'t be /eter9%&e/ $&/ re'o63e/ %& t1e
or/%&$r2 co,rt' o4 6$D. 2f a thin( be in fact, a nuisance due to the manne of its opeation, that
!uestion cannot be detemined b" a mee esolution of the 'an))unian) ;ayan. >Emphasis
supplied.?
MMDA illegall% demolished
the propert% of Justice 5anca%co.
MM7A alle(es that b" vitue of MM7A Resolution No. *$-$H, 'eies of $**$, it is empo#eed to demolish
Bustice -anca"coWs popet". 2t insists that the Meto Manila Council authoi5ed the MM7A and the local
(ovenment units to clea the side#al.s, steets, avenues, alle"s, bid(es, pa.s and othe public places in Meto
Manila of all ille(al stuctues and obstuctions. 2t futhe alle(es that it demolished the popet" pusuant to the
Buildin( Code in elation to 6dinance No. $+*A as amended.
1o#eve, the Buildin( Code cleal" povides the pocess b" #hich a buildin( ma" be demolished. The
authoit" to ode the demolition of an" stuctue lies #ith the Buildin( 6fficial. The petinent povisions of the
Buildin( Code povide0
'ECT26N $*%. Buildin( 6fficials. C E3cept as othe#ise povided heein, the Buildin(
6fficial shall be esponsible fo ca"in( out the povisions of this Code in the field as #ell as the
enfocement of odes and decisions made pusuant theeto.
7ue to the e3i(encies of the sevice, the 'eceta" ma" desi(nate incumbent Public ;o.s
7istict En(inees, Cit" En(inees and Municipal En(inees act as Buildin( 6fficials in thei
espective aeas of 8uisdiction.
The desi(nation made b" the 'eceta" unde this 'ection shall continue until e(ula positions of
Buildin( 6fficial ae povided o unless soone teminated fo causes povided b" la# o decee.
333 333 333
'ECT26N $*/. 7uties of a Buildin( 6fficial. C 2n his espective teitoial 8uisdiction, the
Buildin( 6fficial shall be pimail" esponsible fo the enfocement of the povisions of this Code
as #ell as of the implementin( ules and e(ulations issued theefo. 1e is the official cha(ed
#ith the duties of issuin( buildin( pemits.
1+H
2n the pefomance of his duties, a Buildin( 6fficial ma" ente an" buildin( o its pemises at all
easonable times to inspect and detemine compliance #ith the e!uiements of this Code, and
the tems and conditions povided fo in the buildin( pemit as issued.
:1e& $&2 b,%6/%&- DorE %' 4o,&/ to be co&tr$r2 to t1e #ro3%'%o&' o4 t1%' Co/e, t1e
0,%6/%&- O44%c%$6 9$2 or/er t1e DorE 'to##e/ $&/ #re'cr%be t1e ter9' $&/Por co&/%t%o&'
D1e& t1e DorE D%66 be $66oDe/ to re',9e. L%EeD%'e, t1e 0,%6/%&- O44%c%$6 %' $,t1or%5e/ to
or/er t1e /%'co&t%&,$&ce o4 t1e occ,#$&c2 or ,'e o4 $&2 b,%6/%&- or 'tr,ct,re or #ort%o&
t1ereo4 4o,&/ to be occ,#%e/ or ,'e/ co&tr$r2 to t1e #ro3%'%o&' o4 t1%' Co/e.
333 333 333
'ECT26N $1%. !b$te9e&t o4 "$&-ero,' 0,%6/%&-'. N :1e& $&2 b,%6/%&- or
'tr,ct,re %' 4o,&/ or /ec6$re/ to be /$&-ero,' or r,%&o,', t1e 0,%6/%&- O44%c%$6 '1$66
or/er %t' re#$%r, 3$c$t%o& or /e9o6%t%o& /e#e&/%&- ,#o& t1e /e-ree o4 /$&-er to 6%4e,
1e$6t1, or '$4et2. T1%' %' D%t1o,t #reF,/%ce to 4,rt1er $ct%o& t1$t 9$2 be t$Ee& ,&/er t1e
#ro3%'%o&' o4 !rt%c6e' 482 $&/ 694 to )*) o4 t1e C%3%6 Co/e o4 t1e P1%6%##%&e'. >Emphasis
supplied.?
MM>A v. 8rac+!or+s Rail 8ransit Advertisin)" Vendin) and romotions" ,nc.
F@1G
is applicable to the case at
ba. 2n that case, MM7A, invo.in( its chate and the Buildin( Code, summail" dismantled the advetisin( media
installed on the Meto Rail Tansit >MRT? @. This Cout held0
2t is futile fo MM7A to simpl" invo.e its le(al mandate to 8ustif" the dismantlin( of
Tac.#o.s: billboads, si(na(es and othe advetisin( media. MM7A simpl" had no po#e on its
o#n to dismantle, emove, o desto" the billboads, si(na(es and othe advetisin( media
installed on the MRT@ stuctue b" Tac.#o.s. 2n Metropolitan Manila >evelopment Authority v.
;el-Air Villa)e Association, ,nc., Metropolitan Manila >evelopment Authority v. Viron
8ransportation (o." ,nc., and Metropolitan Manila >evelopment Authority v. Garin, t1e Co,rt 1$/
t1e occ$'%o& to r,6e t1$t MM"!K' #oDer' Dere 6%9%te/ to t1e 4or9,6$t%o&, coor/%&$t%o&,
re-,6$t%o&, %9#6e9e&t$t%o&, #re#$r$t%o&, 9$&$-e9e&t, 9o&%tor%&-, 'ett%&- o4 #o6%c%e',
%&'t$66%&- $ '2'te9, $&/ $/9%&%'tr$t%o&. Not1%&- %& Re#,b6%c !ct No. )924 -r$&te/ MM"!
#o6%ce #oDer, 6et $6o&e 6e-%'6$t%3e #oDer.
Claif"in( the eal natue of MM7A, the Cout held0
...T1e MM"! %', $' ter9e/ %& t1e c1$rter %t'e64, $ J/e3e6o#9e&t $,t1or%t2J. t %' $&
$-e&c2 cre$te/ 4or t1e #,r#o'e o4 6$2%&- /oD& #o6%c%e' $&/ coor/%&$t%&- D%t1 t1e 3$r%o,'
&$t%o&$6 -o3er&9e&t $-e&c%e', #eo#6eK' or-$&%5$t%o&', &o&--o3er&9e&t$6 or-$&%5$t%o&'
$&/ t1e #r%3$te 'ector 4or t1e e44%c%e&t $&/ eB#e/%t%o,' /e6%3er2 o4 b$'%c 'er3%ce' %& t1e
3$'t 9etro#o6%t$& $re$. All its functions are administrati!e in nature $&/ t1e'e $re $ct,$662
',99e/ ,# %& t1e c1$rter %t'e64, viz0
'ec.$. (reation of the Metropolitan Manila >evelopment Authority.- 333.
The MM7A shall pefom plannin(, monitoin( and coodinative functions, and in the
pocess e3ecise e(ulato" and supeviso" authoit" ove the delive" of meto-#ide
sevices #ithin Meto Manila, #ithout diminution of the autonom" of local (ovenment
units concenin( puel" local mattes.
The Cout also a(ees #ith the CA:s ulin( that MM7A Re(ulation No. +&-**+ and MMC
Memoandum Cicula No. HH-*+ did not appl" to Tac.#o.s: billboads, si(na(es and othe
advetisin( media. The pohibition a(ainst postin(, installation and displa" of billboads, si(na(es
and othe advetisin( media applied onl" to public aeas, but MRT@, be%&- #r%3$te #ro#ert2
#,r',$&t to t1e 0LT $-ree9e&t betDee& t1e Go3er&9e&t $&/ MRTC, D$' &ot o&e o4 t1e
$re$' $' to D1%c1 t1e #ro1%b%t%o& $##6%e/. Moeove, MMC Memoandum Cicula No. HH-*+
1++
did not appl" to Tac.#o.s: billboads, si(na(es and othe advetisin( media in MRT@, because
it did not specificall" cove MRT@, and because it #as issued a "ea pio to the constuction of
MRT@ on the cente island of E7'A. Cleal", MMC Memoandum Cicula No. HH-*+ could not
have included MRT@ in its pohibition.
MM7A:s insistence that it #as onl" implementin( Pesidential 7ecee No. 1*+& >;uildin)
(odeC and its implementin( ules and e(ulations is not pesuasive. T1e #oDer to e&4orce t1e
#ro3%'%o&' o4 t1eBuilding Code D$' 6o/-e/ %& t1e "e#$rt9e&t o4 P,b6%c :orE' $&/
H%-1D$2' L"P:HM, &ot %& MM"!, co&'%/er%&- t1e 6$DK' 4o66oD%&- #ro3%'%o&, thus0
'ec. $*1. Responsibilit" for Administration and Enforcement. -
The administation and enfocement of the povisions of this Code includin( the
imposition of penalties fo administative violations theeof is heeb" vested in the
'eceta" of Public ;o.s, Tanspotation and Communications, heeinafte efeed to
as the )'eceta".)
T1ere %' $6'o &o e3%/e&ce '1oD%&- t1$t MM"! 1$/ bee& /e6e-$te/ b2 "P:H to
%9#6e9e&t t1e Building Code. BEmphasis supplied.?
Additionall", the penalt" pescibed b" 6dinance No. $+*A itself does not include the demolition of
ille(all" constucted buildin(s in case of violations. 2nstead, it meel" pescibes a punishment of Xa fine of not
moe than t#o hunded pesos >P$**.**? o b" impisonment of not moe than thit" >@*? da"s, o b" both such fine
and impisonment $t t1e /%'cret%o& o4 t1e Co,rt, Povided, that if the violation is committed b" a copoation,
patneship, o an" 8uidical entit", the Mana(e, mana(in( patne, o an" peson cha(ed #ith the mana(ement
theeof shall be held esponsible theefo.Y The odinance itself also cleal" states that it is the e(ula couts that
#ill detemine #hethe thee #as a violation of the odinance.
As pointed out in 8rac+!or+s" the MM7A does not have the po#e to enact odinances. Thus, it cannot
supplement the povisions of Oue5on Cit" 6dinance No. $+*A meel" thou(h its Resolution No. *$-$H.
=astl", the MM7A claims that the Cit" -ovenment of Oue5on Cit" ma" be consideed to have appoved
the demolition of the stuctue, simpl" because then Oue5on Cit" Ma"o ,eliciano R. Belmonte si(ned MM7A
Resolution No. *$-$H. 2n effect, the cit" (ovenment dele(ated these po#es to the MM7A. The po#es efeed
to ae those that include the po#e to declae, pevent and abate a nuisance
F@$G
and to futhe impose the penalt"
of emoval o demolition of the buildin( o stuctue b" the o#ne o b" the cit" at the e3pense of the o#ne.
F@@G
MM7AWs a(ument does not hold #ate. Thee #as no valid dele(ation of po#es to the MM7A. Conta"
to the claim of the MM7A, the Cit" -ovenment of Oue5on Cit" #ashed its hands off the acts of the fome. 2n its
Ans#e,
F@AG
the cit" (ovenment stated that Xthe demolition #as undeta.en b" the MM7A onl", #ithout the
paticipation andLo consent ofOue5on Cit".Y Theefoe, the MM7A acted on its o#n and should be held solel"
liable fo the destuction of the potion of Bustice -anca"coWs buildin(.
:HEREFORE, in vie# of the foe(oin(, the 7ecision of the Cout of Appeals in CA--.R. 'P No. HA&AH
is !FFRME".
SO OR"ERE".
M!R! LOUR"ES P. !. SERENO
Associate Bustice
$**
;E C6NC<R0
REN!TO C. CORON!
Chief Bustice
!NTONO T. C!RPO PRES0TERO .. 7EL!SCO, .R.
Associate Bustice Associate Bustice
TEREST! .. LEON!R"O-"E C!STRO !RTURO ". 0RON
Associate Bustice Associate Bustice
>6n official leave?
"OS"!"O M. PER!LT! LUC!S P. 0ERS!MN
Associate Bustice Associate Bustice
M!R!NO C. "EL C!STLLO RO0ERTO !. !0!"
Associate Bustice Associate Bustice
>6n official leave?
M!RTN S. 7LL!R!M!, .R. .OSE PORTUG!L PERE(
Associate Bustice Associate Bustice
No P$rt
.OSE C. MEN"O(! 0EN7EN"O L. RE;ES
Associate Bustice Associate Bustice
ESTEL! M. PERL!S-0ERN!0E
Associate Bustice
C E R T F C ! T O N
Pusuant to 'ection 1@, Aticle E222 of the Constitution, 2 cetif" that the conclusions in the above 7ecision
had been eached in consultation befoe the case #as assi(ned to the #ite of the opinion of the Cout.
$*1
REN!TO C. CORON!
C1%e4 .,'t%ce
Republic of the Philippines
'upeme Cout
Manila
FRST "7SON
METROPOLT!N M!NL! G.R. No. 1)9++4
"E7ELOPMENT !UTHORT;,
Petitione, Pesent0
P<N6, (.6., (hairperson"
-versus- CARP26
M6RA=E',
=E6NAR76-7E CA'TR6,
BER'AM2N, and
E2==ARAMA, BR., 66.
TR!C8:OR8S R!L TR!NST
!"7ERTSNG, 7EN"NG Pro9,6-$te/A
!N" PROMOTONS, NC.,
Respondent. 7ecembe 1&, $**+
B-----------------------------------------------------------------------------------------B
R E S O L U T O N
0ERS!MN, J.A
This case concens #hethe the Metopolitan Manila 7evelopment Authoit" >MM7A? could unilateall"
dismantle the billboads, si(na(es and othe adveti5in( media in the stuctues of the Meto Rail Tansit @
>MRT@? installed b" espondent advetisin( compan" b" vitue of its e3istin( contact #ith the o#ne of the MRT@.
The tial and appellate couts uled that MM7A did not have the authoit" to dismantle. MM7A is no#
befoe the Cout to assail such advese ulin(.
!&tece/e&t'
2n 1++/, the -ovenment, thou(h the 7epatment of Tanspotation and Communications, enteed into a
build-lease-tansfe a(eement >B=T a(eement? #ith Meto Rail Tansit Copoation, =imited >MRTC? pusuant to
Republic Act No. &+%/ >;uild" 5perate and 8ransfer La!?, unde #hich MRTC undetoo. to build MRT@ sub8ect to
the condition that MRTC #ould o#n MRT@ fo $% "eas, upon the e3piation of #hich the o#neship #ould tansfe
to the -ovenment.
The B=T a(eement stipulated, amon( othes, that MRTC could build and develop commecial pemises
in the MRT@ stuctues, o obtain advetisin( income theefom, viz0
$*$
1&.1. 7etails of 7evelopment Ri(hts. 76TC heeb" confims and a#ads to Meto Rail
the i(hts to >a? develop commecial pemises in the 7epot and the ai space above the 'tations,
#hich shall be allo#ed to such hei(ht as is le(all" and technicall" feasible, >b? lease o sub-lease
inteests o assi(n such inteests in the 7epot and such ai space and >c? obtain an" advetisin(
income fom the 7epot and such ai space and =RT' Phase 2P.
X=RT' Phase 2Y means the ail tanspot s"stem compisin( about 1&.+ line .ilometes
e3tendin( fom Taft Avenue, Pasa" Cit", to Noth Avenue, Oue5on Cit", occup"in( a stip in the
cente of E7'A appo3imatel" 1*.% metes #ide >appo3imatel" 1$ metes #ide at o aound the
Boni Avenue, 'antolan and Buendia 'tations?, plus about *.1 to *.$ line .ilometes e3tendin(
fom the Noth Avenue 'tation to the 7epot, to(ethe #ith the 'tations, /@ =i(ht Rail Eehicles and
all ancilla" plant, e!uipment and facilities, as moe paticulal" detailed in the 'pecifications.
1&.$. Assi(nment of Ri(hts. 7uin( the 7evelopment Ri(hts Peiod, Meto Rail shall be
entitled to assi(n all o an" of its i(hts, titles and inteests in the 7evelopment Ri(hts to bona fide
eal estate developes. 2n this connection, Meto Rail ma" ente into such development, lease,
sub-lease o othe a(eements o contacts elatin( to the 7epot and the ai space above the
'tations >the space not needed fo all o an" potion of the opeation of the =RT'? fo all o an"
potion of the 7evelopment Ri(hts PeiodP.
2n 1++H, espondent Tac.#o.s Rail Tansit Advetisin(, Eendin( T Pomotions, 2nc. >Tac.#o.s? enteed
into a contact fo advetisin( sevices #ith MRTC. Tac.#o.s theeafte installed commecial billboads,
si(na(es and othe adveti5in( media in the diffeent pats of the MRT@. 2n $**1, ho#eve, MM7A e!uested
Tac.#o.s to dismantle the billboads, si(na(es and othe adveti5in( media pusuant to MM7A Re(ulation No.
+&-**+, #heeb" MM7A pohibited the postin(, installation and displa" of an" .ind o fom of billboads, si(ns,
postes, steames, in an" pat of the oad, side#al., cente island, posts, tees, pa.s and open space. Afte
Tac.#o.s efused the e!uest of MM7A, MM7A poceeded to dismantle the fomeWs billboads and simila
foms of advetisement.
6n Mach 1, $**$, Tac.#o.s filed a(ainst MM7A in the Re(ional Tial Cout >RTC? in Pasi( Cit" an
in8unction suit >#ith pa"e fo the issuance of a tempoa" estainin( ode FTR6G and pelimina" in8unction?,
doc.eted as Civil Case No. &HH&A.
6n Mach &, $**$, the RTC >Banch 1%%? issued a TR6, en8oinin( MM7A fom dismantlin( o desto"in(
Tac.#o.sW billboads, si(na(es and othe adveti5in( media. 6n Mach $%, $**$, the RTC issued a #it of
pelimina" in8unction fo the same pupose.
;ithout filin( a motion for reconsideration to challen(e the RTCWs issuances, MM7A bou(ht a petition
fo certiorari and pohibition befoe the Cout of Appeals >CA?, doc.eted as C.A.--.R. 'P No. /*+@$, but the CA
denied the petition and affimed the RTC on Au(ust @1, $**A. The CA ultimatel" denied MM7AWs motion for
reconsideration thou(h its esolution issued on Mach 1A, $**%.
Thence, MM7A appealed to this Cout >-.R. No. 1&/%1A?, #hich denied MM7AWs petition fo evie#
on 6ctobe $%, $**%.
F1G
R,6%&- o4 t1e RTC
2n the mean#hile, on 6ctobe 1*, $**%, the RTC >Banch 1%%? endeed its decision pemanentl"
en8oinin( MM7A fom dismantlin(, emovin( o desto"in( the billboads, si(na(es and othe adveti5in( media
installed b" Tac.#o.s on the inteio and e3teio stuctues of the MRT@.
F$G
R,6%&- o4 t1e C!
MM7A appealed the RTCWs decision to the CA.
$*@
6n Apil @*, $**/, the CA denied the MM7AWs appeal,
F@G
holdin( that Tac.#o.sW i(ht to install billboads,
si(na(es and othe adveti5in( media on the inteio and e3teio stuctues of the MRT@ must be potected b" a
#it of pemanent in8unctionI and that MM7A had no po#e to dismantle, emove o desto" Tac.#o.sW
billboads, si(na(es and othe adveti5in( media.
FAG
MM7A moved fo econsideation, but the CA esolution denied the motion for
reconsideration on 'eptembe @, $**/.
F%G
1ence, this appeal b" petition fo evie#.
'',e'
MM7A claims that its mandate unde its chate
F&G
of fomulatin(, coodinatin( and monitoin( of policies,
standads, po(ess and po8ects fo the use of thoou(hfaes and the pomotion of safe and
convenient movement of pesons and (oods pompted its issuance of MM7A Re(ulation No. +&-**+, #hich
eads in pat0
h. ? 2t is unla#ful fo an" pesonLs, pivate o public copoations, advetisin( and
pomotions companies, movie poduces, pofessionals and sevice contactos to post, install,
displa" an" .ind o fom of billboads, si(ns, postes, steames, pofessional sevice
advetisements and othe visual cluttes in an" pat of the oad, side#al., cente island, posts,
tees pa.s and open space.
MM7A aves that the convesion of the cente island of Epifanio 7elos 'antos Avenue >E7'A? into the
caia(e#a" of the MRT@ line did not e3empt the E7'A cente island fom the covea(e of the MM7A e(ulationI
F/G
that the -ovenmentWs (ant of development i(hts to MRTC #as not an abdication of its i(ht to e(ulate, and,
theefoe, the development of the MRT@ emained sub8ect to all e3istin( and applicable national and local la#s,
odinances, ules and e(ulationsI
FHG
that MM7A #as meel" implementin( e3istin( and applicable la#sI
F+G
that
Tac.#o.sW advetisin( mateials #ee placed indisciminatel" and #ithout due e(ad to safet", and as such
mi(ht be classified as obstuctions and distactions to the motoists tavesin( E7'AI
F1*G
and that the inteests of a
fe# should not pevail ove the (ood of the (eate numbe in the communit" #hose safet" and (eneal #elfae
MM7A #as mandated to potect.
F11G
Tac.#o.s maintains, on the othe hand, that MM7AWs petition #as defective fo its failue to aise an"
(enuine !uestion of la#I and that the CAWs decision dated Apil @*, $**/ #as valid and coect.
F1$G
R,6%&- o4 t1e Co,rt
The petition has no meit.
That Tac.#o.s deived its i(ht to install its billboads, si(na(es and othe adveti5in( media in the MRT@
fom MRTCWs authoit" unde the B=T a(eement to develop commecial pemises in the MRT@ stuctue o to
obtain advetisin( income theefom is no lon(e debatable. <nde the B=T a(eement, indeed, MRTC o#ned the
MRT@ fo $% "eas, upon the e3piation of #hich MRTC #ould tansfe o#neship of the MRT@ to the
-ovenment.
Considein( that MRTC emained to be the o#ne of the MRT@ duin( the time mateial to this case, and
until this date, MRTCWs entein( into the contact fo advetisin( sevices #ith Tac.#o.s #as a valid e3ecise of
o#neship b" the fome. 2n fact, in Metropolitan Manila >evelopment Authority v. 8rac+!or+s Rail 8ransit
Advertisin)" Vendin) E romotions,,nc."
F1@G
this Cout e3pessl" eco(ni5ed Tac.#o.sW i(ht to install the
billboads, si(na(es and othe advetisin( media pusuant to said contact. The latteWs i(ht should, theefoe, be
espected.
2t is futile fo MM7A to simpl" invo.e its le(al mandate to 8ustif" the dismantlin( of Tac.#o.sW billboads,
si(na(es and othe advetisin( media. MM7A simpl" had no po#e on its o#n to dismantle, emove, o desto"
$*A
the billboads, si(na(es and othe advetisin( media installed on the MRT@ stuctue b"
Tac.#o.s. 2n Metropolitan Manila >evelopment Authority v. ;el-Air Villa)e Association, ,nc.,
F1AG
Metropolitan
Manila >evelopment Authority v. Viron 8ransportation (o." ,nc.,
F1%G
and Metropolitan Manila >evelopment
Authority v. Garin,
F1&G
the Cout had the occasion to ule that MM7AWs po#es #ee limited to the fomulation,
coodination, e(ulation, implementation, pepaation, mana(ement, monitoin(, settin( of policies, installin( a
s"stem, and administation. Nothin( in Republic Act No. /+$A (anted MM7A police po#e, let alone le(islative
po#e.
F1/G
Claif"in( the eal natue of MM7A, the Cout held0
333 The MM7A is, as temed in the chate itself, a Xdevelopment authoit"Y. 2t is an a(enc"
ceated fo the pupose of la"in( do#n policies and coodinatin( #ith the vaious national
(ovenment a(encies, peopleWs o(ani5ations, non-(ovenmental o(ani5ations and the pivate
secto fo the efficient and e3peditious delive" of basic sevices in the vast metopolitan aea. All
its functions are administrative in nature and these ae actuall" summed up in the chate
itself, viz0
'ec.$. (reation of the Metropolitan Manila >evelopment Authority.- 333.
The MM7A shall pefom plannin(, monitoin( and coodinative functions, and in the
pocess e3ecise e(ulato" and supeviso" authoit" ove the delive" of meto-#ide
sevices #ithin Meto Manila, #ithout diminution of the autonom" of local (ovenment
units concenin( puel" local mattes.
F1HG
The Cout also a(ees #ith the CAWs ulin( that MM7A Re(ulation No. +&-**+ and MMC Memoandum
Cicula No. HH-*+ did not appl" to Tac.#o.sW billboads, si(na(es and othe advetisin( media. The pohibition
a(ainst postin(, installation and displa" of billboads, si(na(es and othe advetisin( media applied onl" to public
aeas, but MRT@, bein( pivate popet" pusuant to the B=T a(eement bet#een the -ovenment and MRTC,
#as not one of the aeas as to #hich the pohibition applied. Moeove, MMC Memoandum Cicula No. HH-*+
did not appl" to Tac.#o.sW billboads, si(na(es and othe advetisin( media in MRT@, because it did not
specificall" cove MRT@, and because it #as issued a "ea pio to the constuction of MRT@ on the cente island
of E7'A. Cleal", MMC Memoandum Cicula No. HH-*+ could not have included MRT@ in its pohibition.
MM7AWs insistence that it #as onl" implementin( Pesidential 7ecee No. 1*+& >;uildin) (ode? and its
implementin( ules and e(ulations is not pesuasive. The po#e to enfoce the povisions of the ;uildin)
(ode #as lod(ed in the 7epatment of Public ;o.s and 1i(h#a"s >7P;1?, not in MM7A, considein( the la#Ws
follo#in( povision, thus0
'ec. $*1. Responsibilit" for Administration and Enforcement. M
The administation and enfocement of the povisions of this Code includin( the imposition of
penalties fo administative violations theeof is heeb" vested in the 'eceta" of Public ;o.s,
Tanspotation and Communications, heeinafte efeed to as the X'eceta".Y
Thee is also no evidence sho#in( that MM7A had been dele(ated b" 7P;1 to implement the ;uildin)
(ode.
:HEREFORE, #e den" the petition fo evie#, and affim the decision dated Apil @*,
$**/ and the esolution dated 'eptembe @, $**/.
Costs a(ainst the petitione.
SO OR"ERE".
$*%
LUC!S P. 0ERS!MN
Associate Bustice
:E CONCURA
RE;N!TO S. PUNO
Chief Bustice
Chaipeson
CONCHT! C!RPO MOR!LES TEREST! .. LEON!R"O-"E C!STRO
Associate Bustice Associate Bustice
M!RTN S. 7LL!R!M!, .R.
Associate Bustice
C E R T F C ! T O N
Pusuant to 'ection 1@, Aticle E222 of the Constitution, 2 cetif" that the conclusions in the above
Resolution had been eached in consultation befoe the case #as assi(ned to the #ite of the opinion of the
CoutWs 7ivision.
RE;N!TO S. PUNO
Chief Bustice
Republic of the Philippines
'<PREME C6<RT
Manila
,2R'T 72E2'26N
!NUNC!CON 7"!. "E OU!NO, G.R. No. 168))*
$*&
M!RO P. OU!NO, LETC! OU!NO
!RN!(, $&/ CELO OU!NO M!RTNE(,
Petitione
s,
- vesus -
THE REPU0LC OF
THEPHLPPNES, THE M!CT!N-CE0U
NTERN!TON!L !RPORT !UTHORT;,
$&/ THE REGSTER OF "EE"S FOR THE
CT; OF CE0U,
Respondents.
3-------------------------------------------3
M!CT!N-CE0UNTERN!TON!L
!RPORT !UTHORT; LMC!!M,
Petitione,
- vesus -
RC!R"O L. NOC!N, %& 1%'
#er'o&$6 c$#$c%t2 $&/ $' !ttor&e2-%&-F$ct
o4 OL;MP! E. ESTE7ES, EML! E.
0!C!LL!, RESTTUT! E. MONT!N!, $&/
R!UL L. NOC!NH $&/ !LETH! SUCO
M!G!T, %& 1er #er'o&$6 c$#$c%t2 $&/ $'
!ttor&e2-%&-F$ct o4 PHLP M. SUCO,
"ORS S. "EL! CRU(, .!MES M. SUCO,
E":!R" M. SUCO, ROSEL;N SUCO-
L!:SN, RE< M. SUCO, 8H!RL! SUCO-
GUTERRE(, !L0ERT CHONG0!N, $&/
.OHNN; CH!N,
Responden
ts.
Pesent0
C6R6NA, (.6., Chaipeson,
EE=A'C6, BR.,
=E6NAR76-7E CA'TR6,
7E= CA'T2==6,
PEREJ, 66.
G.R. No. 168812
Pomul(ated0
,ebua" +, $*11
3-----------------------------------------------------------------------------------------3
" E C S O N
7EL!SCO, .R., J.A
At the cente of these t#o >$? Petitions fo Revie# on Cetioai unde Rule A% is the issue of the i(ht of the
fome o#nes of lots ac!uied fo the e3pansion of the =ahu( Aipot inCebu Cit" to epuchase o secue
econve"ance of thei espective popeties.
2n the fist petition, doc.eted as G.R. No. 168))*, petitiones Anunciacion vda. de 6uano, Maio 6uano,
=eticia 6uano Anai5 and Cielo 6uano Matine5 >the 6uanos? see. to nullif" the 7ecision
F1G
dated 'eptembe @,
$**A of the Cout of Appeals >CA? in CA--.R. CE No. /H*$/, affimin( the 6de dated 7ecembe +, $**$ of the
Re(ional Tial Cout >RTC?, Banch %/ in Cebu Cit", in Civil Case No. CEB-$*/A@, a suit to compel the Republic
of the Philippines andLo the Mactan-Cebu 2ntenational Aipot Authoit" >MC2AA? to econve" to the 6uanos a
pacel of land.
The second petition, doc.eted as G.R. No. 168812, has the MC2AA see.in( pincipall" to annul
and set aside the 7ecision
F$G
and Resolution
D;E
dated Banua" 1A, $**% and Bune $+, $**%, espectivel", of the
$*/
CA in CA--.R. CE No. &A@%&, sustainin( the RTC, Banch 1@ in Cebu Cit" in its 7ecision of 6ctobe /, 1+HH in
Civil Case No. CEB-1H@/*.
Pe its 6ctobe 1+, $**% Resolution, the Cout odeed the consolidation of both cases.
E3cept fo the names of the paties and the specific lot desi(nation involved, the elevant factual
antecedents #hich (ave ise to these consolidated petitions ae, fo the most pat, as set foth in the CoutWs
7ecision
FAG
of 6ctobe 1%, $**@, as eiteated in a Resolution
F%G
dated Au(ust +, $**%, in G.R. No.
1+62)3 entitled Geirs of 8imoteo Moreno and Maria Rotea v. Mactan-(ebu ,nternational Airport Authority >Geirs
of Moreno?, and in othe ealie elated cases.
F&G
2n 1+A+, the National Aipot Copoation >NAC?, MC2AAWs pedecesso a(enc", pusued a po(am to
e3pand the =ahu( Aipot in Cebu Cit". Thou(h its team of ne(otiatos, NAC met and ne(otiated #ith the o#nes
of the popeties situated aound the aipot, #hich included =ot Nos. /AA-A, /A%-A, /A&, /A/, /&1-A, /&$-A, /&@-
A, +A$, and +A/ of the Banilad Estate. As the lando#nes #ould late claim, the (ovenment ne(otiatin( team, as
a s#eetene, assued them that the" could epuchase thei espective lands should the =ahu( Aipote3pansion
po8ect do not push thou(h o once the =ahu( Aipot closes o its opeations tansfeed to Mactan-Cebu Aipot.
'ome of the lando#nes accepted the assuance and e3ecuted deeds of sale #ith a i(ht of epuchase. 6thes,
ho#eve, includin( the o#nes of the afoementioned lots, efused to sell because the puchase pice offeed #as
vie#ed as #a" belo# ma.et, focin( the hand of the Republic, epesented b" the then Civil Aeonautics
Administation >CAA?, as successo a(enc" of the NAC, to file a complaint fo the e3popiation of =ot Nos. /AA-A,
/A%-A, /A&, /A/, /&1-A, /&$-A, /&@-A, +A$, and +A/, amon( othes, doc.eted as C%3%6 C$'e No. R-
1881 entitled Republic v. >amian 5uano" et al.
6n 7ecembe $+, 1+&1, the then Cout of ,ist 2nstance >C,2? of Cebu endeed 8ud(ment fo the
Republic, disposin(, in pat, as follo#s0
N 7E: OF THE FOREGONG, 8ud(ment is heeb" endeed0
1. 7eclain( the e3popiation of =ots Nos. /%, /&, /&, H+, +*, +1, +$, 1*%, 1*&, 1*/, 1*H,
1*A, +$1-A, HH, +@, +1@-B, /$, //, +1&, ///-A, +1H, +1+, +$*, /&A-A, +HH, /AA-A, /A%-A, /A&,
/A/, /&$-A, /&@-A, +%1, +A$, /$*-A, 3 3 3 and +A/, included in the =ahu( Aipot, Cebu Cit",
8ustified in and in la#ful e3ecise of the i(ht of eminent domain.
3 3 3 3
@. Afte the pa"ment of the foe(oin( financial obli(ation to the lando#nes, diectin( the
latte to delive to the plaintiff the coespondin( Tansfe Cetificates of Title to thei espective
lotsI and upon the pesentation of the said titles to the Re(iste of 7eeds, odein( the latte to
cancel the same and to issue, in lieu theeof, ne# Tansfe Cetificates of Title in the name of the
plaintiff.
F/G
2n vie# of the adveted bu"-bac. assuance made b" the (ovenment, the o#nes of the lots no lon(e
appealed the decision of the tial cout.
FHG
,ollo#in( the finalit" of the 8ud(ment of condemnation, cetificates of title
fo the coveed pacels of land #ee issued in the name of the Republic #hich, pusuant to Republic Act No. &+%H,
F+G
#ee subse!uentl" tansfeed to MC2AA.
At the end of 1++1, o soon afte the tansfe of the afoesaid lots to MC2AA, =ahu( Aipot completel"
ceased opeations, Mactan Aipot havin( opened to accommodate incomin( and out(oin( commecial fli(hts. 6n
the (ound, the e3popiated lots #ee neve utili5ed fo the pupose the" #ee ta.en as no e3pansion
of =ahu( Aipot #as undeta.en. This development pompted the fome lot o#nes to fomall" demand fom the
(ovenment that the" be allo#ed to e3ecise thei pomised i(ht to epuchase. The demands #ent unheeded.
Civil suits follo#ed.
G.R. No. 168812 LMC!! Pet%t%o&M
$*H
6n ,ebua" H, 1++&, Ricado =. 2nocian and fou othes >all childen of 2sabel =imba(a #ho oi(inall"
o#ned si3 F&G of the lots e3popiated?I and Aletha 'uico Ma(at and seven othes, successos-in-inteest of
'antia(o 'uico, the oi(inal o#ne of t#o >$? of the condemned lots >collectivel", the 2nocians?, filed befoe the
RTC in Cebu Cit" a complaint fo econve"ance of eal popeties and dama(es a(ainst MC2AA. The complaint,
doc.eted as C%3%6 C$'e No. CE0-183)*, #as eventuall" affled to Banch 1@ of the cout.
6n 'eptembe $+, 1++/, one Albet Chion(bian >Chion(bian?, alle(in( to be the o#ne of =ot Nos. /&1-A
and /&$-A but #hich the 2nocians #ee no# claimin(, moved and #as late allo#ed to intevene.
7uin( the pe-tial, MC2AA admitted the follo#in( facts0
1. That the popeties, #hich ae the sub8ect matte of Civil Case No. CEB-1H@/*, ae
also the popeties involved in Civil Case R-1HH1I
$. That the pupose of the e3popiation #as fo the e3pansion of the
old =ahu( AipotI that the =ahu( Aipot #as not e3pandedI
@. That the old =ahu( Aipot #as closed sometime in Bune 1++$I
A. That the pice paid to the lot o#nes in the e3popiation case is found in the
decision of the coutI and
%. That some popeties #ee econve"ed b" the MC2AA because the pevious o#nes
#ee able to secue e3pess #aives o ides #heein the (ovenment a(eed to etun the
popeties should the e3pansion of the =ahu( Aipot not mateiali5e.
7uin( tial, the 2nocians adduced evidence #hich included the testimon" of Ricado 2nocian >2nocian? and
Asteio <" ><"?. <", an emplo"ee of the CAA, testified that he #as a membe of the team #hich ne(otiated fo
the ac!uisition of cetain lots in =ahu( fo the poposed e3pansion of the =ahu( Aipot. 1e ecalled that he acted
as the intepeteLspo.esman of the team since he could spea. the Cebuano dialect. 1e stated that the othe
membes of the team of ne(otiatos #ee Att". Pedo 6campo, Att". =ansan(, and Att". 'ali(umba. 1e
ecounted that, in the couse of the ne(otiation, thei team assued the lando#nes that thei landholdin(s #ould
be econve"ed to them in the event the =ahu( Aipot #ould be abandoned o if its opeation #ee tansfeed to
the Mactan Aipot. 'ome lando#nes opted to sell, #hile othes #ee of a diffeent bent o#in( to the inade!uac"
of the offeed pice.
2nocian testified that he and his mothe, 2sabel =amba(a, attended a meetin( called b" the NAC team of
ne(otiatos sometime in 1+A/ o 1+A+ #hee he and the othe lando#nes #ee (iven the assuance that the"
could epuchase thei lands at the same pice in the event the =ahu( Aipot ceases to opeate. 1e futhe
testified that the" e8ected the NACWs offe. 1o#eve, he said that the" no lon(e appealed the decee of
e3popiation due to the epuchase assuance adveted to.
The MC2AA pesented Michael Bacai5as >Bacai5as?, #ho stated #o.in( fo MC2AA as le(al assistant
in 1++&. 1e testified that, in the couse of doin( eseach #o. on the lots sub8ect of Civil Case No. CEB-1H@/*,
he discoveed that the same lots #ee coveed b" the decision in Civil Case No. R-1HH1. 1e also found out
that the said decision did not e3pessl" contain an" condition on the matte of epuchase.
R,6%&- o4 t1e RTC
6n 6ctobe /, 1++H, the RTC endeed a 7ecision in Civil Case No. CEB-1H@/*, the dispositive potion of
#hich eads as follo#s0
:HEREFORE, in vie# of the foe(oin(, 8ud(ment is heeb" endeed diectin( defendant
Mactan Cebu 2ntenational Aipot Authoit" >MC2AA? to econve" >fee fom liens and
encumbances? to plaintiffs Ricado 2nocian, 6limpia E. Esteves, Emilia E. Bacalla, Restituta E.
Montana and Raul 2nocian =ots No. /AA-A, /A%-A, /A&, /&$-A, /A/, /&1-A and to plaintiffs Aletha
'uico Ma(at, Philip M. 'uico, 7ois '. dela Cu5, Bames M. 'uico, Ed#ad M. 'uico, Rosel"n '.
$*+
=a#sin, Re3 M. 'uico and 9hala 'uico--utiee5 =ots No. +A$ and +A/, afte plaintiffs shall have
paid MC2AA the sums indicated in the decision in Civil Case No. R-1HH1. 7efendant MC2AA is
li.e#ise diected to pa" the afoementioned plaintiffs the sum o P%*,***.** as and fo attone"Ws
fees and P1*,***.** fo liti(ation e3penses.
Albet Chion(bianWs intevention should be, as it is heeb" "ENE" fo utte lac. of
factual basis.
;ith costs a(ainst defendant MC2AA.
F1*G
Theefom, MC2AA #ent to the CA on appeal, doc.eted as CA--.R. CE No. &A@%&.
R,6%&- o4 t1e C!
6n Banua" 1A, $**%, the CA endeed 8ud(ment fo the 2nocians, declain( them entitled to the
econve"ance of the !uestioned lots as the successos-in-inteest of the late 2sabel =imba(a and 'antia(o 'uico,
as the case ma" be, #ho #ee the fome e(isteed o#nes of the said lots. The decetal potion of the CAWs
7ecision eads0
:HEREFORE, in vie# of the foe(oin( pemises, 8ud(ment is heeb" endeed b"
us "SMSSNG the appeal filed in this case and !FFFRMNG the decision endeed b" the
cout a !uo on 6ctobe /, 1++H in Civil Case No. CEB-1H@/*.
SO OR"ERE".
The CA, citin( and epoducin( e3cepts fom Geirs of Moreno,
F11G
vituall" held that the decision in Civil
Case No. R-1HH1 #as conditional, statin( Xthat the e3popiation of Fplaintiff-appelleesWG lots fo the poposed
e3pansion of the =ahu( Aipot #as odeed b" the C,2 of Cebu unde the impession that =ahu( Aipot #ould
continue in opeation.Y
F1$G
The condition, as ma" be deduced fom the C,2Ws decision, #as that should MC2AA, o
its pecuso a(enc", discontinue alto(ethe #ith the opeation of =ahu( Aipot, then the o#nes of the lots
e3popiated ma", if so minded, demand of MC2AA to ma.e (ood its vebal assuance to allo# the epuchase of
the popeties. To the CA, this assuance, a demandable a(eement of epuchase b" itself, has been
ade!uatel" established.
6n 'eptembe $1, $**%, the MC2AA filed #ith <s a petition fo evie# of the CAWs 7ecision, doc.eted as
-.R. No. 1&HH1$.
G.R. No. 168))* LO,$&o Pet%t%o&M
'oon afte the MC2AA 8ettisoned the =ahu( Aipot e3pansion po8ect, infomal settles enteed and
occupied =ot No. /&@-A #hich, befoe its e3popiation, belon(ed to the 6uanos.The 6uanos then fomall" as.ed
to be allo#ed to e3ecise thei i(ht to epuchase the afoementioned lot, but the MC2AA i(noed the
demand. 6n Au(ust 1H, 1++/, the 6uanos instituted a complaint befoe the Cebu Cit" RTC a(ainst the Republic
and the MC2AA fo econve"ance, doc.eted as Civil Case No. CEB-$*/A@.
Ans#ein(, the Republic and MC2AA aveed that the 6uanos no lon(e have enfoceable i(hts
#hatsoeve ove the condemned =ot No. /&@-A, the decision in Civil Case No. R-1HH1 not havin( found an"
evesiona" condition.
R,6%&- o4 t1e RTC
B" a 7ecision dated Novembe $H, $***, the RTC, Banch %/ in Cebu Cit" uled in favo of the 6uanos,
disposin( as follo#s0
$1*
:HEREFORE, in the li(ht of the foe(oin(, the Cout heeb" endes 8ud(ment in favo of
the plaintiffs, Anunciacion Eda. 7e 6uano, Maio P. 6uano, =eticia 6uano Anai5 and Cielo
6uano Matine5 and a(ainst the Republic of the Philippines and Mactan Cebu 2ntenational
Aipot Authoit" >MC2AA? to estoe to plaintiffs, the possession and o#neship of thei land, =ot
No. /&@-A upon pa"ment of the e3popiation pice to defendantsI and
$. 6dein( the Re(iste of 7eeds to effect the tansfe of the Cetificate of Title fom
defendant Republic of the Philippines on =ot /&@-A, cancelin( TCT No. %$**A in the name of
defendant Republic of the Philippines and to issue a ne# title on the same lot in the names of
Anunciacion Eda. 7e 6uano, Maio P. 6uano, =eticia 6uano Anai5 and Cielo 6uano Matine5.
No ponouncement as to costs.
F1@G
Actin( on the motion of the Republic and MC2AA fo econsideation, ho#eve, the RTC, Banch %/
in Cebu Cit", pesided this time b" Bud(e Eni!ueta =. Belamino, issued, on 7ecembe +, $**$, an 6de
F1AG
that
evesed its ealie decision of Novembe $H, $*** and dismissed the 6uanosW complaint.
R,6%&- o4 t1e C!
2n time, the 6uanos inteposed an appeal to the CA, doc.eted as CA--.R. CE No. /H*$/. Eventuall", the
appellate cout endeed a 7ecision
F1%G
dated 'eptembe @, $**A, den"in( the appeal, thus0
:HEREFORE, pemises consideed, the 6de dated 7ecembe +, $**$, of the Re(ional
Tial Cout, /
th
Budicial Re(ion, Banch %/, Cebu Cit", in Civil Case No. CEB-$*/A@, is heeb"
A,,2RME7. No ponouncement as to costs.
SO OR"ERE".
E3plainin( its case disposition, the CA stated that the decision in Civil Case No. R-1HH1 did not state an"
condition that =ot No. /&@-A of the 6uanosMMand all coveed lots fo that matteMM#ould be etuned to them o
that the" could epuchase the same popet" if it #ee to be used fo puposes othe than fo
the =ahu( Aipot. The appellate cout also #ent on to declae the inapplicabilit" of the CoutWs ponouncement
in M(,AA v. (ourt of Appeals" R8(" ;ranch <" (ebu (ity" Melba Limba)o" et al. ,
F1&G
to suppot the 6uanosW cause,
since the affected lando#nes in that case, unli.e the 6uanos, pated #ith thei popet" not thou(h e3popiation
but via a sale and puchase tansaction.
The 6uanos filed a motion fo econsideation of the CAWs 7ecision, but #as denied pe the CAWs Ma" $&,
$**% Resolution.
F1/G
1ence, the" filed this petition in -.R. No. 1&H//*.
T1e '',e'
G.R. No. 168812
GROUN"S FOR !LLO:!NCE OF THE PETTON
l. T1E A''A2=E7 2''<ANCE' 2==E-A==K 'TR2PPE7 T1E REP<B=2C 6, 2T'
AB'6=<TE AN7 <NC6N72T26NA= T2T=E T6 T1E '<BBECT EDPR6PR2ATE7
PR6PERT2E'.
ll. T1E 2MP<N-E7 72'P6'2T26N' 2NEA=27=K 6EERT<RNE7 T12' 16N6RAB=E
C6<RTW' ,2NA= R<=2N-' 2N :ER9 V. M.N,(,AL,89 5: (A;ANA8.AN" M(,AA V. (5.R8
5: AEAL' AN> RE9E' V. NA8,5NAL G5.',NG A.8G5R,89.
$11
lll. T1E C6<RT 6, APPEA=' -RAEE=K ERRE7 2N APP=K2N- T12' 16N6RAB=E C6<RTW'
R<=2N- 2N M5REN5, A=BE2T 2T 1A' N6T KET ATTA2NE7 ,2NA=2TK.
F1HG
G.R. No. 168))*
=,e't%o&' o4 6$D #re'e&te/ %& t1%' Pet%t%o&
;hethe o not the testimonial evidence of the petitiones povin( the pomises, assuances and
epesentations b" the aipot officials and la#"es ae inadmissbale unde the 'tatute of ,auds.
;hethe o not unde the ulin( of this 1onoable Cout in the heis of Moeno Case, and
pusuant to the pinciples enunciated theein, petitiones heein ae entitiled to ecove thei
liti(ated popet".
Re$'o&' 4or !66oD$&ce' o4 t1%' Pet%t%o&
Respondents did not ob8ect duin( tial to the admissibilit" of petitionesW testimonial evidence
unde the 'tatute of ,auds and have thus #aived such ob8ection and ae no# baed fom
aisin( the same. 2n an" event, the 'tatute of ,auds is not applicable heein. Conse!uentl",
petitionesW evidence is admissible and should be dul" (iven #ei(ht and cedence, as initiall" held
b" the tial cout in its oi(inal 7ecision.
F1+G
;hile thei espective actions a(ainst MC2AA belo# ended diffeentl", the 6uanos and the 2nociansW
poffeed a(uments pesented befoe this Cout un alon( paallel lines, both assetin( entitlement to ecove the
liti(ated popet" on the sten(th of the CoutWs ulin( in Geirs of Moreno. MC2AA has, ho#eve, fomulated in its
Consolidated Memoandum the .e" inteelated issues in these consolidated cases, as follo#s0
2
;1ET1ER ABAN76NMENT 6, T1E P<B=2C <'E ,6R ;12C1 T1E '<BBECT PR6PERT2E'
;ERE EDPR6PR2ATE7 ENT2T=E' PET2T26NER' 6<AN6', ET A=. AN7 RE'P6N7ENT'
2N6C2AN, ET A=. T6 REACO<2RE T1EM.
22
;1ET1ER PET2T26NER' 6<AN6', ET A=. AN7 RE'P6N7ENT' 2N6C2AN, ET A=. ARE
ENT2T=E7 T6 REC6NEEKANCE 6, T1E '<BBECT PR6PERT2E' '2MP=K 6N T1E BA'2'
6, AN A==E-E7 EERBA= PR6M2'E 6R A''<RANCE 6, '6ME NAC 6,,2C2A=' T1AT
T1E '<BBECT PR6PERT2E' ;2== BE RET<NRE7 2, T1E A2RP6RT PR6BECT ;6<=7 BE
ABAN76NE7.
T1e Co,rtO' R,6%&-
The Republic and MC2AAWs petition in -.R. No. 1&HH1$ is beeft of meit, #hile the 6uano petition in -.R.
No. 1&H//* is meitoious.
At the outset, thee >@? fail" established factual pemises ou(ht to be emphasi5ed0
:irst, the MC2AA andLo its pedecesso a(enc" had not actuall" used the lots sub8ect of the final decee of
e3popiation in Civil Case No. R-1HH1 fo the pupose the" #ee oi(inall" ta.en b" the (ovenment, i.e., fo the
e3pansion and development of =ahu( Aipot.
'econd, the =ahu( Aipot had been closed and abandoned. A si(nificant potion of it had, in fact, been
puchased b" a pivate copoation fo development as a commecial comple3.
F$*G
$1$
8hird, it has been pepondeantl" established b" evidence that the NAC, thou(h its team of ne(otiatos,
had (iven assuance to the affected lando#nes that the" #ould be entitled to epuchase thei espective lots in
the event the" ae no lon(e used fo aipot puposes.
F$1G
XNo less than Asteio <",Y the Cout noted in Geirs of
Moreno, Xone of the membes of the CAA Mactan =e(al Team, #hich inteceded fo the ac!uisition of the lots fo
the =ahu( AipotWs e3pansion, affimed that pesistent assuances #ee (iven to the lando#nes to the effect that
as soon as the =ahu( Aipot is abandoned o tansfeed to Mactan, the lot o#nes #ould be able to eac!uie
thei popeties.Y
F$$G
2n Civil Case No. CEB-$*/A@, E3hibit X-,Y the tanscipt of the deposition
F$@G
of Anunciacion
vda. de 6uano covein( the assuance made had been fomall" offeed in evidence and dul" consideed in the
initial decision of the RTCCebu Cit". 2n Civil Case No. CEB-1H@/*, the tial cout, on the basis of testimonial
evidence, and late the CA, eco(ni5ed the evesiona" i(hts of the suin( fome lot o#nes o thei successos
in inteest
F$AG
and esolved the case accodin(l". 2n point #ith espect to the epesentation and pomise of the
(ovenment to etun the lots ta.en should the planned aipot e3pansion do not mateiali5e is #hat the Cout said
in Geirs of Moreno, thus0
This is a difficult case callin( fo a difficult but 8ust solution. To be(in #ith thee e3ists
an ,&/e&%$b6e 1%'tor%c$6 &$rr$t%3e that the pedecessos of espondent MC2AA had su((ested
to the lando#nes of the popeties coveed b" the =ahu( Aipot e3pansion scheme that the"
could epuchase thei popeties at the temination of the aipotWs venue. 'ome acted on this
assuance and sold thei popetiesI othe lando#nes held out and #aited fo the e3ecise of
eminent domain to ta.e its couse until finall" comin( to tems #ith espondentWs pedecessos
that the" #ould not appeal no bloc. futhe 8ud(ment of condemnation if the i(ht of epuchase
#as e3tended to them. A handful failed to pove that the" acted on such assuance #hen the"
pated #ith o#neship of thei land.
F$%G
>Emphasis suppliedI citations omitted.?
,o pespective, Geirs of MorenoMMlate follo#ed b" M(,AA v. 8udtud >8udtud?
F$&G
and the consolidated
cases at baMMis cast unde the same factual settin( and centeed on the e3popiation of pivatel"-o#ned lots fo
the public pupose of e3pandin( the =ahu( Aipot and the alle(ed pomise of econve"ance (iven b" the
ne(otiatin( NAC officials to the pivate lot o#nes. All the lots bein( claimed b" the fome o#nes o successos-
in-inteest of the fome o#nes in the Geirs of Moreno, 8udtud, and the pesent cases #ee similal" ad8ud(ed
condemned in favo of the Republic in Civil Case No. R-1HH1. All the claimants sou(ht #as o is to have the
condemned lots econve"ed to them upon the pa"ment of the condemnation pice since the #,b6%c #,r#o'e of
the e3popiation #as neve met. 2ndeed, the e3popiated lots #ee neve used and #ee, in fact, abandoned b"
the e3popiatin( (ovenment a(encies.
2n all then, the issues and suppotin( a(uments pesented b" both sets of petitiones in these
consolidated cases have alead" peviousl" been passed upon, discussed at len(th, and pacticall" peemptoil"
esolved in Geirs of Moreno and the Novembe $**H 8udtud ulin(. The 6uanos, as petitiones in -.R. No.
1&H//*, and the 2nocians, as espondents in -.R. No. 1&HH1$, ae similal" situated as the heis
of Moeno in Geirs of Moreno and Ben8amin Tudtud in 8udtud. Be that as it ma", thee is no eason #h" the ratio
decidendi in Geirs of Morenoand 8udtud should not be made to appl" to petitiones 6uanos and espondents
2nocians such that the" shall be entitled to ecove thei o thei pedecessosW espective popeties unde the
same manne and aan(ement as the heis of Moeno and Tudtud. 'tare decisis et non 2uieta movere >to adhee
to pecedents, and not to unsettle thin(s #hich ae established?.
F$/G
Bust li.e in 8udtud and ealie in Geirs of Moreno, MC2AA #ould foist the theo" that the 8ud(ment of
condemnation in Civil Case No. R-1HH1 #as #ithout !ualification and #as unconditional. 2t #ould, in fact, da#
attention to the fallo of the e3popiation coutWs decision to pove that thee is nothin( in the decision indicatin(
that the (ovenment (ave assuance o undetoo. to econve" the coveed lots in case the =ahu( aipot
e3pansion po8ect is aboted. Elaboatin( on this an(le, MC2AA a(ues that the claim of the 6uanos and the
2nocians e(adin( the alle(ed vebal assuance of the NAC ne(otiatin( team that the" can eac!uie thei
landholdin(s is baed b" the 'tatute of ,auds.
F$HG
<nde the ule on the 'tatute of ,auds, as e3pessed in Aticle 1A*@ of the Civil Code, a contact fo the
sale o ac!uisition of eal popet" shall be unenfoceable unless the same o some note of the contact be in
$1@
#itin( and subscibed b" the pat" cha(ed. 'ub8ect to defined e3ceptions, evidence of the a(eement cannot be
eceived #ithout the #itin(, o seconda" evidence of its contents.
MC2AAWs invocation of the 'tatute of ,auds is misplaced pimail" because the statute applies onl" to
e3ecuto" and not to completed, e3ecuted, o patiall" consummated contacts.
F$+G
(arbonnel v. oncio" et al.,
!uotin( Chief Bustice Moan, e3plains the ationale behind this ule, thusl"0
3 3 3 XThe eason is simple. 2n e3ecuto" contacts thee is a #ide field fo faud because
unless the" ma" be in #itin( thee is no palpable evidence of the intention of the contactin(
paties. The statute has been pecisel" been enacted to pevent faud.Y 3 3 3 1o#eve, if a
contact has been totall" o patiall" pefomed, the e0clusion of parol evidence !ould promote
fraud or bad faith, fo it #ould enable the defendant to .eep the benefits alead" deived b" him
fom the tansaction in liti(ation, and at the same time, evade the obli(ations, esponsibilities o
liabilities assumed o contacted b" him theeb".
F@*G
>Emphasis in the oi(inal.?
Anal"5in( the situation of the cases at ba, thee can be no seious ob8ection to the poposition that the
a(eement pac.a(e bet#een the (ovenment and the pivate lot o#nes #as alead" patiall" pefomed b" the
(ovenment thou(h the ac!uisition of the lots fo the e3pansion of the =ahu( aipot. The paties, ho#eve, failed
to accomplish the moe impotant condition in the C,2 decision deceein( the e3popiation of the lots liti(ated
upon0 the e3pansion of the =ahu( Aipot. The po8ectMMthe public pupose behind the foced popet" ta.in(MM
#as, in fact, neve pusued and, as a conse!uence, the lots e3popiated #ee abandoned. Be that as it ma", the
t#o (oups of lando#nes can, in an action to compel MC2AA to ma.e (ood its oal undeta.in( to allo#
epuchase, adduce paol evidence to pove the tansaction.
At an" ate, the ob8ection on the admissibilit" of evidence on the basis of the 'tatute of ,auds ma" be
#aived if not timel" aised. Recods tend to suppot the conclusion that MC2AA did not, as the 6uanos and the
2nocians posit, ob8ect to the intoduction of paol evidence to pove its commitment to allo# the fome lando#nes
to epuchase thei espective popeties upon the occuence of cetain events.
2n a bid to den" the lot o#nes the i(ht to epuchase, MC2AA, citin( cases,
F@1G
points to the dispositive
pat of the decision in Civil Case R-1HH1 #hich, as couched, (anted the Republic absolute title to the pacels of
land declaed e3popiated. The MC2AA is coect about the unconditional tone of the dispositive potion of the
decision, but that actualit" #ould not ca" the da" fo the a(enc". Addessin( the matte of the othe#ise
absolute teno of the C,2Ws disposition in Civil Case No. R-1HH1, the Cout, in Geirs of Moreno, afte ta.in( stoc.
of the ensuin( potion of the bod" of the C,2Ws decision, said0
As fo the public pupose of the e3popiation poceedin(, it cannot no# be
doubted. Althou(h Mactan Aipot is bein( constucted, it does not ta.e a#a" the actual
usefulness and impotance of the =ahu(Aipot0 it is handlin( the ai taffic of both civilian and
milita". ,om it aicafts fl" to Mindanao and Eisa"as and pass thu it on thei fli(hts to the Noth
and Manila. 8hen" no evidence !as adduced to sho! ho! soon is the Mactan Airport to be
placed in operation and !hether the Lahu) Airport !ill be closed immediately thereafter. 2t is up
to the othe depatments of the -ovenment to detemine said mattes. The Cout cannot
substitute its 8ud(ments fo those of the said depatments o a(encies. 2n the absence of such
sho#in(, t1e co,rt D%66 #re',9e t1$t t1e L$1,- !%r#ort D%66 co&t%&,e to be %& o#er$t%o&.
F@$G
>Emphasis supplied.?
;e #ent on to state as follo#s0
;hile the tial cout in Civil Case No. R-1HH1 could have simpl" ac.no#led(ed the
pesence of public pupose fo the e3ecise of eminent domain e(adless of the suvival of the
=ahu( Aipot, the tial cout in its>ecision chose not to do so but instead pefi3ed its findin( of
public pupose upon its undestandin( that RLahu) Airport !ill continue to be in operationQ. Eeil",
$1A
these meanin(ful statements in the bod" of the>ecision #aant the conclusion that the
e3popiated popeties #ould emain to be so until it #as confimed that =ahu( Aipot #as no
lon(e Rin operationQ. This infeence futhe implies t#o >$? thin(s0 >a? afte the =ahu( Aipot
ceased its undeta.in( as such and the e3popiated lots #ee not bein( used fo an" aipot
e3pansion po8ect, the i(hts vis-Q-vis the e3popiated lots 3 3 3 as bet#een the 'tate and thei
fome o#nes, petitiones heein, must be e!uitabl" ad8ustedI and >b? the foe(oin( unmista.able
declaations in the bod" of the >ecision should me(e #ith and become an intinsic pat of
the fallo theeof #hich unde the pemises is cleal" inade!uate since the dispositive potion is not
in accod #ith the findin(s as contained in the bod" theeof.
F@@G
Not to be oveloo.ed of couse is #hat the Cout said in its Resolution disposin( of MC2AAWs motion to
econside the oi(inal ulin( in Geirs of Moreno. 2n that esolution, ;e stated that the fallo of the decision in Civil
Case R-1HH1 should be vie#ed and undestood in connection #ith the entie te3t, #hich contemplated a etun of
the popet" ta.en if the aipot e3pansion po8ect #ee abandoned. ,o ease of efeence, follo#in( is #hat the
Cout #ote0
Moeove, #e do not subscibe to the FMC2AAWsG contention that since the possibilit" of
the =ahu( AipotWs closue #as actuall" consideed b" the tial cout, a stipulation on evesion o
epuchase #as so mateial that it should not have been discounted b" the cout a 2uo in its
decision in Civil Case No. R-1HH1, if, in fact, thee #as one. ;e find it pope to cite, once moe,
this CoutWs ulin( that the fallo of the decision in Civil Case No. R-1HH1 must be ead in efeence
to the othe potions of the decision in #hich it foms a pat. A eadin( of the CoutWs 8ud(ment
must not be confined to the dispositive potion aloneI athe it should be meanin(full" constued
in unanimit" #ith the ratio decidendi theeof to (asp the tue intent and meanin( of a decision.
F@AG
The Cout has, to be sue, ta.en stoc. of :ery v. Municipality of (abanatuan,
F@%G
a case MC2AA cites at
eve" possible tun, #hee the Cout made these obsevations0
2f, fo e3ample, land is e3popiated fo a paticula pupose, #ith the condition that #hen
that pupose is ended o abandoned the popet" shall etun to its fome o#ne, then of couse,
#hen the pupose is teminated o abandoned, the fome o#ne eac!uies the popet" so
e3popiated. 3 3 3 2f, upon the conta", ho#eve the decee of e3popiation (ives to the entit" a
fee simple title, then, of couse, the land becomes the absolute popet" of the e3popiato 3 3 3
and in that case the non-use does not have the effect of defeatin( the title ac!uied b" the
e3popiation poceedin(s 3 3 3.
:ery not#ithstandin(, MC2AA cannot eall" i(htfull" sa" that it has absolute title to the lots deceed
e3popiated in Civil Case No. R-1HH1. The coect lesson of :ery is captued b" #hat the Cout said in that case,
thus0 Xthe (ovenment ac!uies onl" such i(hts in e3popiated pacels of land as ma" be allo#ed b" the
chaacte of its title ove the popeties.Y 2n li(ht of ou disposition in Geirs of Moreno and 8udtud, the statement
immediatel" adveted to means that in the event the paticula public use fo #hich a pacel of land is e3popiated
is abandoned, the o#ne shall not be entitled to ecove o epuchase it as a matte of i(ht, unless such ecove"
o epuchase is e3pessed in o %rre'%'t%b62 /e/,c%b6e 4ro9 t1e co&/e9&$t%o& F,/-9e&t. But as has been
detemined belo#, the decision in Civil Case No. R-1HH1 en8oined MC2AA, as a condition of appovin(
e3popiation, to allo# ecove" o epuchase upon abandonment of the =ahu( aipot po8ect. To boo# fom
ou undel"in( decision in Geirs of Moreno, XFnGo doubt, the etun o epuchase of the condemned popeties of
petitiones could eadil" be 8ustified as the manifest le(al effect of conse!uence of the tial coutWs undel"in(
pesumption that RLahu) Airport !ill continue to be in operationQ #hen it (anted the complaint fo eminent domain
and the aipot discontinued its activities.Y
F@&G
Povidin( added suppot to the 6uanos and the 2nociansW i(ht to epuchase is #hat in Geirs of
Moreno #as efeed to as constuctive tust, one that is a.in to the implied tuste3pessed in At. 1A%A of the Civil
Code,
F@/G
the pupose of #hich is to pevent un8ust enichment.
F@HG
2n the case at bench, the 6uanos and the
2nocians pated #ith thei espective lots in favo of the MC2AA, the latte obli(in( itself to use the ealties fo the
e3pansion of =ahu( AipotI failin( to .eep its end of the ba(ain, MC2AA can be compelled b" the fome
lando#nes to econve" the pacels of land to them, othe#ise, the" #ould be denied the use of thei popeties
$1%
upon a state of affais that #as not conceived no contemplated #hen the e3popiation #as authoi5ed. 2n effect,
the (ovenment meel" held the popeties condemned in tust until the poposed public use o pupose fo #hich
the lots #ee condemned #as actuall" consummated b" the (ovenment. 'ince the (ovenment failed to pefom
the obli(ation that is the basis of the tansfe of the popet", then the lot o#nes 6uanos and 2nocians can
demand the econve"ance of thei old popeties afte the pa"ment of the condemnation pice.
Constuctive tusts ae fictions of e!uit" that couts use as devices to emed" an" situation in #hich the
holde of the le(al title, MC2AA in this case, ma" not, in (ood conscience, etain the beneficial inteest. ;e add,
ho#eve, as in Geirs of Moreno, that the pat" see.in( the aid of e!uit"MMthe lando#nes in this instance, in
establishin( the tustMMmust himself do e!uit" in a manne as the cout ma" deem 8ust and easonable.
The Cout, in the ecent M(,AA v. Lozada" 'r., evisited and abandoned the :ery ulin( that the fome
o#ne is not entitled to evesion of the popet" even if the public pupose #ee not pusued and
#ee abandoned, thus0
6n this note, #e ta.e this oppotunit" to evisit ou ulin( in :ery, #hich involved an
e3popiation suit commenced upon pacels of land to be used as a site fo a public ma.et.
2nstead of puttin( up a public ma.et, espondent Cabanatuan constucted esidential houses fo
lease on the aea. Claimin( that the municipalit" lost its i(ht to the popet" ta.en since it did not
pusue its public pupose, petitione Buan ,e", the fome o#ne of the lots e3popiated, sou(ht
to ecove his popeties. 1o#eve, as he had admitted that, in 1+1%, espondent Cabanatuan
ac!uied a fee simple title to the lands in !uestion, 8ud(ment #as endeed in favo of the
municipalit", follo#in( Ameican 8uispudence, paticulal" (ity of :ort Hayne v. La+e 'hore E
M.'. R9. (o." Mc(onihay v. 8heodore Hri)ht" and Reichlin) v. (ovin)ton Lumber (o." all
unifoml" holdin( that the tansfe to a thid pat" of the e3popiated eal popet", #hich
necessail" esulted in the abandonment of the paticula public pupose fo #hich the popet"
#as ta.en, is not a (ound fo the ecove" of the same b" its pevious o#ne, the title of the
e3popiatin( a(enc" bein( one of fee simple.
6bviousl", :ery #as not decided pusuant to ou no# sacedl" held constitutional i(ht
that pivate popet" shall not be ta.en fo public use #ithout 8ust compensation.
2t is #ell settled
that the ta.in( of pivate popet" b" the -ovenments po#e of eminent domain is sub8ect to t#o
mandato" e!uiements0 >1? that it is fo a paticula public puposeI and >$? that 8ust
compensation be paid to the popet" o#ne. These e!uiements pata.e of the natue of implied
conditions that should be complied #ith to enable the condemno to .eep the popet"
e3popiated.
More #$rt%c,6$r62, D%t1 re'#ect to t1e e6e9e&t o4 #,b6%c ,'e, t1e eB#ro#r%$tor
'1o,6/ co99%t to ,'e t1e #ro#ert2 #,r',$&t to t1e #,r#o'e 't$te/ %& t1e #et%t%o& 4or
eB#ro#r%$t%o& 4%6e/, 4$%6%&- D1%c1, %t '1o,6/ 4%6e $&ot1er #et%t%o& 4or t1e &eD #,r#o'e. 4 &ot,
%t %' t1e& %&c,9be&t ,#o& t1e eB#ro#r%$tor to ret,r& t1e '$%/ #ro#ert2 to %t' #r%3$te oD&er,
%4 t1e 6$tter /e'%re' to re$cI,%re t1e '$9e. 6the#ise, the 8ud(ment of e3popiation suffes an
intinsic fla#, as it #ould lac. one indispensable element fo the pope e3ecise of the po#e of
eminent domain, namel", the paticula public pupose fo #hich the popet" #ill be
devoted. Accodin(l", the pivate popet" o#ne #ould be denied due pocess of la#, and the
8ud(ment #ould violate the popet" o#nes i(ht to 8ustice, fainess, and e!uit".
2n li(ht of these pemises, #e no# e3pessl" hold that the ta.in( of pivate popet",
conse!uent to the -ovenments e3ecise of its po#e of eminent domain, is al#a"s sub8ect to the
condition that the popet" be devoted to the specific public pupose fo #hich it #as ta.en.
Coollail", if this paticula pupose o intent is not initiated o not at all pusued, and is
peemptoil" abandoned, then the fome o#nes, if the" so desie, ma" see. the evesion of the
popet", sub8ect to the etun of the amount of 8ust compensation eceived. 2n such a case, the
e3ecise of the po#e of eminent domain has become impope fo lac. of the e!uied factual
8ustification.
F@+G
>Emphasis supplied.?
$1&
Clin(in( to :ery, specificall" the fee simple concept undepinnin( it, is no lon(e compellin(, considein(
the ensuin( ine!uit" such application entails. Too, the Cout esolved :erynot unde the cove of an" of the
Philippine Constitutions, each deceein( that pivate popet" shall not be ta.en fo public use #ithout 8ust
compensation. The t#in elements of 8ust compensation and public pupose ae, b" themselves, diect limitations
to the e3ecise of eminent domain, a(uin(, in a #a", a(ainst the notion of fee simple title. The fee does not vest
until pa"ment of 8ust compensation.
FA*G
,n esse, e3popiation is foced pivate popet" ta.in(, the lando#ne bein( eall" #ithout a (host
of a chance to defeat the case of the e3popiatin( a(enc". 2n othe #ods, in e3popiation, the pivate o#ne
is depived of popet" a(ainst his #ill. ;ithal, the mandato" e!uiement of due pocess ou(ht to be stictl"
follo#ed, such that the state must sho#, at the minimum, a (enuine need, an e3actin( public pupose to ta.e
pivate popet", the pupose to be specificall" alle(ed o least easonabl" deducible fom the complaint.
Public use, as an eminent domain concept, has no# ac!uied an e3pansive meanin( to include
an" use that is of Xusefulness, utilit", o advanta(e, o #hat is poductive of (eneal benefit Fof the publicG.Y
FA1G
2f
the (enuine public necessit"Cthe ve" eason o condition as it #eeCallo#in(, at the fist instance, the
e3popiation of a pivate land ceases o disappeas, then thee is no moe co(ent point fo the (ovenmentWs
etention of the e3popiated land. The same le(al situation should hold if the (ovenment devotes the popet"
to anothe public use ve" much diffeent fom the oi(inal o deviates fom the declaed pupose to benefit
anothe pivate peson. 2t has been said that the diect use b" the state of its po#e to obli(e lando#nes to
enounce thei poductive possession to anothe citi5en, #ho #ill use it pedominantl" fo that citi5enWs o#n
pivate (ain, is offensive to ou la#s.
FA$G
A condemno should commit to use the popet" pusuant to the pupose stated in the petition fo
e3popiation, failin( #hich it should file anothe petition fo the ne# pupose. 2f not, then it behooves the
condemno to etun the said popet" to its pivate o#ne, if the latte so desies. The (ovenment cannot
plausibl" .eep the popet" it e3popiated in an" manne it pleases and, in the pocess, dishono the 8ud(ment of
e3popiation. This is not in .eepin( #ith the idea of fai pla",
The notion, theefoe, that the (ovenment, via e3popiation poceedin(s, ac!uies unesticted
o#neship ove o a fee simple title to the coveed land, is no lon(e tenable. ;e su((ested as much in Geirs of
Moreno and in 8udtud and moe ecentl" in Lozada" 'r. E3popiated lands should be diffeentiated fom a piece
of land, o#neship of #hich #as absolutel" tansfeed b" #a" of an unconditional puchase and sale contact
feel" enteed b" t#o paties, one #ithout obli(ation to bu" and the othe #ithout the dut" to sell. 2n that case,
the fee simple concept eall" comes into pla". Thee is eall" no occasion to appl" the Xfee simple conceptY if
the tansfe is conditional. The ta.in( of a pivate land in e3popiation poceedin(s is al#a"s conditioned on its
continued devotion to its public pupose. As a necessa" coolla", once the pupose is teminated o
peemptoil" abandoned, then the fome o#ne, if he so desies, ma" see. its evesion, sub8ect of couse to
the etun, at the ve" least, of the 8ust compensation eceived.
To be compelled to enounce dominion ove a piece of land is, in itself, an alead" bitte pill to s#allo#
fo the o#ne. But to be as.ed to sacifice fo the common (ood and "ield o#neship to the (ovenment #hich
ene(es on its assuance that the pivate popet" shall be fo a public pupose ma" be too much. But it #ould
be #ose if the po#e of eminent domain #ee delibeatel" used as a subtefu(e to benefit anothe #ith
influence and po#e in the political pocess, includin( development fims. The mischief thus depicted is not at all
fa-fetched #ith the continued application of :ery. Even as the Cout delibeates on these consolidated cases,
thee is an uncontoveted alle(ation that the MC2AA is poised to sell, if it has not "et sold, the aeas in !uestion
to Cebu Popet" Eentues, 2nc. This povides an added dimension to abandon :ery.
-iven the foe(oin( dis!uisitions, e!uit" and 8ustice demand the econve"ance b" MC2AA of the liti(ated
lands in !uestion to the 6uanos and 2nocians. 2n the same to.en, 8ustice and fai pla" also dictate that the 6uanos
and 2nocian etun to MC2AA #hat the" eceived as 8ust compensation fo the e3popiation of thei espective
popeties plus le(al inteest to be computed fom default, #hich in this case should un fom the time MC2AA
complies #ith the econve"ance obli(ation.
FA@G
The" must li.e#ise pa" MC2AA the necessa" e3penses it mi(ht
$1/
have incued in sustainin( thei espective lots and the moneta" value of its sevices in mana(in( the lots in
!uestion to the e3tent that the", as pivate o#nes, #ee benefited theeb".
2n accodance #ith At. 11H/ of the Civil Code on mutual compensation, MC2AA ma" .eep #hateve
income o fuits it ma" have obtained fom the pacels of land e3popiated. 2n tun, the 6uanos and 2nocians
need not e!uie the accountin( of inteests eaned b" the amounts the" eceived as 8ust compensation.
FAAG
,ollo#in( At. 11H+ of the Civil Code povidin( that Q?%@4 t1e t1%&- %' %9#ro3e/ b2 %t' &$t,re, or b2 t%9e,
t1e %9#ro3e9e&t '1$66 %&,re to t1e be&e4%t o4 t1e cre/%tor 3 3 3,Y the 6uanos and 2nocians do not have to
settle the appeciation of the values of thei espective lots as pat of the econve"ance pocess, since the value
incease is meel" the natual effect of natue and time.
,inall", ;e delete the a#ad of PhP %*,*** and PhP 1*,***, as attone"Ws fees and liti(ation e3penses,
espectivel", made in favo of the 2nocians b" the Cebu Cit" RTC in its 8ud(ment in Civil Case No. CEB-1H@/*, as
late affimed b" the CA. As a matte of sound polic", no pemium should be set on the i(ht to liti(ate #hee thee
is no doubt about the bona fides of the e3ecise of such i(ht,
FA%G
as hee, albeit the decision of MC2AA to esist the
fome lando#nesW claim eventuall" tuned out to be untenable.
:HEREFORE, the petition in G.R. No. 168))* is GR!NTE". Accodin(l", the CA 7ecision dated
'eptembe @, $**A in CA--.R. CE No. /H*$/ is RE7ERSE" and SET !S"E. Mactan-Cebu 2ntenational Aipot
Authoit" is odeed to econve" sub8ect =ot No. /&@-A to petitiones Anunciacion vda. de 6uano, Maio P.
6uano, =eticia 6uano Anai5, and Cielo 6uano Matine5. The Re(iste of 7eeds of Cebu Cit" is odeed to effect
the necessa" cancellation of title and tansfe it in the name of the petitiones #ithin fifteen >1%? da"s fom finalit"
of 8ud(ment.
The petition of the Mactan-Cebu 2ntenational Aipot Authoit" in G.R. No. 168812 is "ENE", and
the CAWs 7ecision and Resolution dated Banua" 1A, $**% and Bune $+, $**%, espectivel", in CA--.R. CE No.
&A@%& ae !FFRME", e3cept insofa as the" a#aded attone"Ws fees and liti(ation e3penses that ae
heeb" "ELETE". Accodin(l", Mactan-Cebu 2ntenational Aipot Authoit" is odeed to econve" to
espondents Ricado =. 2nocian, 6l"mpia E. Esteves, Emilia E. Bacalla, Restituta E. Montana, and Raul =. 2nocian
the liti(ated =ot Nos. /AA-A, /A%-A, /A&, /&$-A, /A/, and /&1-AI and to espondents Aletha 'uico Ma(at, Philip
M. 'uico, 7oloes '. dela Cu5, Bames M. 'uico, Ed#ad M. 'uico, Rosel"n '. =a#sin, Re3 M. 'uico, and 9hala
'uico--utiee5 the liti(ated =ot Nos. +A$ and +A/. The Re(iste of 7eeds of Cebu Cit" is odeed to effect the
necessa" cancellation of title and tansfe it in the name of espondents #ithin a peiod of fifteen >1%? da"s fom
finalit" of 8ud(ment.
The foe(oin( dispositions ae sub8ect to =U!LFC!TONS, to appl" to these consolidated petitions,
#hen appopiate, as follo#s0
>1? Petitiones 6uano, et al. in -.R. No. 1&H//* and espondents Ricado = 2nocian, et al. in -.R. No.
1&HH1$ ae odeed to etun to the MC2AA the 8ust compensation the" o thei pedecessos-in-inteest eceived
fo the e3popiation of thei espective lots as stated in Civil Case No. R-1HH1, #ithin a peiod of si3t" >&*? da"s
fom finalit" of 8ud(mentI
>$? The MC2AA shall be entitled to RET!N #hateve fuits and income it ma" have obtained fom the
sub8ect e3popiated lots #ithout an" obli(ation to efund the same to the lot o#nesI and
>@? Petitiones 6uano, et al. in -.R. No. 1&H//* and espondents Ricado =. 2nocian, et al. in -.R. No.
1&HH1$ shall RET!N #hateve inteests the amounts the" eceived as 8ust compensation ma" have eaned in
the meantime #ithout an" obli(ation to efund the same to MC2AA.
SO OR"ERE".
PRES0TERO .. 7EL!SCO,
.R. Associate Bustice
;E C6NC<R0
$1H
REN!TO C. CORON!
Chief Bustice
Chaipeson
TEREST! .. LEON!R"O-"E C!STRO M!R!NO C. "EL C!STLLO
Associate Bustice Associate Bustice
.OSE PORTUG!L PERE(
Associate Bustice
C E R T F C ! T O N
Pusuant to 'ection 1@, Aticle E222 of the Constitution, 2 cetif" that the conclusions in the above
7ecision had been eached in consultation befoe the case #as assi(ned to the #ite of the opinion of the
CoutWs 7ivision.
REN!TO C. CORON!
Chief Bustice
Republic of the Philippines
SUPREME COURT
Manila
EN BANC
G.R. No. 1616+6 .,&e 29, 2**+
REPU0LC OF THE PHLPPNES, GENER!L ROMEO (ULUET!, COMMO"ORE E"G!R"O G!LEOS,
!NTONO C!0!LUN!, "OROTEO M!NTOS U FLORENCO 0ELOTN"OS, petitiones,
vs.
7CENTE G. LM, espondent.
R E ' 6 = < T 2 6 N
S!N"O7!L-GUTERRE(, J.:
$1+
Bustice is the fist vitue of social institutions.
1
;hen the state #ields its po#e of eminent domain, thee aises a
coelative obli(ation on its pat to pa" the o#ne of the e3popiated popet" a 8ust compensation. 2f it fails, thee
is a clea case of in8ustice that must be edessed. 2n the pesent case, fift"-seven >%/? "eas have lapsed fom
the time the 7ecision in the sub8ect e3popiation poceedin(s became final, but still the Republic of the
Philippines, heein petitione, has not compensated the o#ne of the popet". To toleate such polon(ed inaction
on its pat is to encoua(e distust and esentment amon( ou people M the ve" vices that coode the ties of
civilit" and tempt men to act in #a"s the" #ould othe#ise shun.
A evisit of the petinent facts in the instant case is impeative.
6n 'eptembe %, 1+@H, the Republic of the Philippines >Republic? instituted a special civil action fo e3popiation
#ith the Cout of ,ist 2nstance >C,2? of Cebu, doc.eted as Civil Case No. /H1, involvin( =ots +@$ and +@+ of the
Banilad ,ia =and Estate, =ahu(, Cebu Cit", fo the pupose of establishin( a milita" esevation fo the
Philippine Am". =ot +@$ #as e(isteed in the name of -evasia 7en5on unde Tansfe Cetificate of Title >TCT?
No. 1A+$1 #ith an aea of $%,1@/ s!uae metes, #hile =ot +@+ #as in the name of Eulalia 7en5on and coveed
b" TCT No. 1$%&* consistin( of 1@,1&A s!uae metes.
Afte depositin( P+,%**.** #ith the Philippine National Ban., pusuant to the 6de of the C,2 dated 6ctobe 1+,
1+@H, the Republic too. possession of the lots. Theeafte, o on Ma" 1A, 1+A*, the C,2 endeed its 7ecision
odein( the Republic to pa" the 7en5ons the sum of PA,*&$.1* as 8ust compensation.
The 7en5ons inteposed an appeal to the Cout of Appeals but it #as dismissed on Mach 11, 1+AH. An ent" of
8ud(ment #as made on !#r%6 +, 1948.
2n 1+%*, Bose -aleos, one of the heis of the 7en5ons, filed #ith the National Aipots Copoation a claim fo
entals fo the t#o lots, but it )denied .no#led(e of the matte.) Anothe hei, Nesto Belocua, bou(ht the claim
to the 6ffice of then Pesident Calos -acia #ho #ote the Civil Aeonautics Administation and the 'eceta" of
National 7efense to e3pedite action on said claim. 6n 'eptembe &, 1+&1, =t. Manuel Cabal e8ected the claim
but e3pessed #illin(ness to pa" the appaised value of the lots #ithin a easonable time.
,o failue of the Republic to pa" fo the lots, on 'eptembe $*, 1+&1, the 7en5onsW successos-in-
inteest,Fr$&c%'c$ G$6eo'-7$6/e1,e5$ $&/ .o'e4%&$ G$6eo'-P$&er%o,
$
filed #ith the same C,2 an action fo
ecove" of possession #ith dama(es a(ainst the Republic and offices of the Amed ,oces of the Philippines in
possession of the popet". The case #as doc.eted as Civil Case No. R-/$*H.
2n the inteim o on Novembe +, 1+&1, TCT Nos. $@+@A and $@+@% covein( =ots +@$ and +@+ #ee issued in the
names of ,ancisca Ealdehue5a and Bosefina Paneio, espectivel". Annotated theeon #as the phase )sub8ect
to the pioit" of the National Aipots Copoation to ac!uie said pacels of land, =ots +@$ and +@+ upon pevious
pa"ment of a easonable ma.et value.)
6n Bul" @1, 1+&$, the C,2 pomul(ated its 7ecision in favo of Ealdehue5a and Paneio, holdin( that the" ae the
o#nes and have etained thei i(ht as such ove =ots +@$ and +@+ because of the RepublicWs failue to pa" the
amount of PA,*&$.1*, ad8ud(ed in the e3popiation poceedin(s. 1o#eve, in vie# of the annotation on thei land
titles, the" #ee odeed to e3ecute a deed of sale in favo of the Republic. 2n vie# of )the diffeences in mone"
value fom 1+A* up to the pesent,) the cout ad8usted the ma.et value at P1&,$AH.A*, to be paid #ith &U inteest
pe annum fom Apil %, 1+AH, date of ent" in the e3popiation poceedin(s, until full pa"ment.
Afte thei motion fo econsideation #as denied, Ealdehue5a and Paneio appealed fom the C,2 7ecision, in
vie# of the amount in contoves", diectl" to this Cout. The case #as doc.eted as No. =-$1*@$.
@
6n Ma" 1+,
1+&&, this Cout endeed its 7ecision affimin( the C,2 7ecision. 2t held that Ealdehue5a and Paneio ae still the
e(isteed o#nes of =ots +@$ and +@+, thee havin( been no pa"ment of 8ust compensation b" the Republic.
Appaentl", this Cout found nothin( in the ecods to sho# that the Republic paid the o#nes o thei successos-
in-inteest accodin( to the C,2 decision. ;hile it deposited the amount of P+,%**,**, and said deposit #as
alle(edl" disbused, ho#eve, the pa"ees could not be ascetained.
$$*
Not#ithstandin( the above findin(, this Cout still uled that Ealdehue5a and Paneio ae not entitled to ecove
possession of the lots but ma" onl" demand the pa"ment of thei fai ma.et value, atiocinatin( as follo#s0
)Appellants #ould contend that0 L1M possession of =ots +@$ and +@+ should be estoed to them as o#nes of the
sameI L2M the Republic should be odeed to pa" entals fo the use of said lots, plus attone"Ws feesI andL3M the
cout a 2uo in the pesent suit had no po#e to fi3 the value of the lots and ode the e3ecution of the deed of sale
afte pa"ment.
2t is tue that plaintiffs ae still the e(isteed o#nes of the land, thee not havin( been a tansfe of said lots in
favo of the -ovenment. The ecods do not sho# that the -ovenment paid the o#nes o thei successos-in-
inteest accodin( to the 1+A* C,2 decision althou(h, as stated, P+,%**.** #as deposited b" it, and said deposit
had been disbused. ;ith the ecods lost, ho#eve, it cannot be .no#n #ho eceived the mone" >E3h. 1A sa"s0
Z2t is futhe cetified that the coespondin( Eouches and petinent Bounal and Cash Boo. #ee desto"ed duin(
the last ;old ;a, and theefoe the names of the pa"ees concened cannot be ascetained.W? !&/ t1e
Go3er&9e&t &oD $/9%t' t1$t t1ere %' &o $3$%6$b6e recor/ '1oD%&- t1$t #$29e&t 4or t1e 3$6,e o4 t1e 6ot' %&
I,e't%o& 1$' bee& 9$/e >'tipulation of ,acts, pa. +, Rec. on Appeal, p. $H?.
T1e #o%&t' %& /%'#,te $re D1et1er ',c1 #$29e&t c$& 't%66 be 9$/e $&/, %4 'o, %& D1$t $9o,&t. S$%/ 6ot'
1$3e bee& t1e ',bFect o4 eB#ro#r%$t%o& #rocee/%&-'. 02 4%&$6 $&/ eBec,tor2 F,/-9e&t %& '$%/
#rocee/%&-', t1e2 Dere co&/e9&e/ 4or #,b6%c ,'e, $' #$rt o4 $& $%r#ort, $&/ or/ere/ 'o6/ to t1e
Go3er&9e&t. & 4$ct, t1e $bo3e9e&t%o&e/ t%t6e cert%4%c$te' 'ec,re/ b2 #6$%&t%44' o3er '$%/ 6ot' co&t$%&e/
$&&ot$t%o&' o4 t1e r%-1t o4 t1e N$t%o&$6 !%r#ort' Cor#or$t%o& L&oD C!!M to #$2 4or $&/ $cI,%re t1e9. t
4o66oD' t1$t bot1 b2 3%rt,e o4 t1e F,/-9e&t, 6o&- 4%&$6, %& t1e eB#ro#r%$t%o& ',%t, $' De66 $' t1e $&&ot$t%o&'
,#o& t1e%r t%t6e cert%4%c$te', #6$%&t%44' $re &ot e&t%t6e/ to reco3er #o''e''%o& o4 t1e%r eB#ro#r%$te/ 6ot' C
D1%c1 $re 't%66 /e3ote/ to t1e #,b6%c ,'e 4or D1%c1 t1e2 Dere eB#ro#r%$te/ C b,t o&62 to /e9$&/ t1e 4$%r
9$rEet 3$6,e o4 t1e '$9e.J
Mean#hile, in 1+&A, Ealdehue5a and Paneio mot(a(ed =ot +@$ to 7%ce&te L%9, heein espondent,
A
as secuit"
fo thei loans. ,o thei failue to pa" =im despite demand, he had the mot(a(e foeclosed in 1+/&. Thus, TCT
No. $@+@A #as cancelled, and in lieu theeof, TCT No. &@H+A #as issued in his name.
6n Au(ust $*, 1++$, espondent =im filed a complaint fo I,%et%&- o4 t%t6e #ith the Re(ional Tial Cout >RTC?,
Banch 1*, Cebu Cit", a(ainst -eneal Romeo Julueta, as Commande of the Amed ,oces of the Philippines,
Commodoe Ed(ado -aleos, as Commande of Naval 7istict E of the Philippine Nav", Antonio Cabaluna,
7ooteo Mantos and ,loencio Belotindos, heein petitiones. 'ubse!uentl", he amended the complaint to
implead the Republic.
6n Ma" A, $**1, the RTC endeed a decision in favo of espondent, thus0
J:HEREFORE, 8ud(ment is heeb" endeed in favo of plaintiff Eicente =im and a(ainst all defendants, public
and pivate, /ec6$r%&- #6$%&t%44 7%ce&te L%9 t1e $b'o6,te $&/ eBc6,'%3e oD&er o4 Lot No. 932 D%t1 $66 t1e
r%-1t' o4 $& $b'o6,te oD&er %&c6,/%&- t1e r%-1t to #o''e''%o&. The moneta" claims in the complaint and in
the counte claims contained in the ans#e of defendants ae odeed 7ismissed.
Petitiones elevated the case to the Cout of Appeals, doc.eted theein as CA--.R. CE No. /$+1%. 2n its
7ecision
%
dated 'eptembe 1H, $**@, the Appellate Cout sustained the RTC 7ecision, thus0
JOb3%o,'62, /e4e&/$&t-$##e66$&t Re#,b6%c e3$/e/ %t' /,t2 o4 #$2%&- D1$t D$' /,e to t1e 6$&/oD&er'. T1e
eB#ro#r%$t%o& #rocee/%&-' 1$/ $6re$/2 beco9e 4%&$6 %& t1e 6$te 194*O' $&/ 2et, ,# to &oD, or 9ore t1$&
4%4t2 L+*M 2e$r' $4ter, t1e Re#,b6%c 1$/ &ot 2et #$%/ t1e co9#e&'$t%o& 4%Be/ b2 t1e co,rt D1%6e
co&t%&,o,'62 re$#%&- be&e4%t' 4ro9 t1e eB#ro#r%$te/ #ro#ert2 to t1e #reF,/%ce o4 t1e 6$&/oD&er. B B B.
T1%' %' co&tr$r2 to t1e r,6e' o4 4$%r #6$2 bec$,'e t1e co&ce#t o4 F,'t co9#e&'$t%o& e9br$ce' &ot o&62 t1e
correct /eter9%&$t%o& o4 t1e $9o,&t to be #$%/ to t1e oD&er' o4 t1e 6$&/, b,t $6'o t1e #$29e&t 4or t1e
6$&/ D%t1%& $ re$'o&$b6e t%9e 4ro9 %t' t$E%&-. :%t1o,t #ro9#t #$29e&t, co9#e&'$t%o& c$&&ot be
$$1
co&'%/ere/ JF,'tJ 4or t1e #ro#ert2 oD&er %' 9$/e to ',44er t1e co&'eI,e&ce o4 be%&- %99e/%$te62
/e#r%3e/ o4 1%' 6$&/ D1%6e be%&- 9$/e to D$%t 4or $ /ec$/e or 9ore, %& t1%' c$'e 9ore t1$& +* 2e$r',
be4ore $ct,$662 rece%3%&- t1e $9o,&t &ece''$r2 to co#e D%t1 t1e 6o''. To $66oD t1e t$E%&- o4 t1e
6$&/oD&er'O #ro#ert%e', $&/ %& t1e 9e$&t%9e 6e$3e t1e9 e9#t2-1$&/e/ b2 D%t11o6/%&- #$29e&t o4
co9#e&'$t%o& D1%6e t1e -o3er&9e&t '#ec,6$te' o& D1et1er or &ot %t D%66 #,r',e eB#ro#r%$t%o&, or Dor'e,
4or -o3er&9e&t to ',b'eI,e&t62 /ec%/e to $b$&/o& t1e #ro#ert2 $&/ ret,r& %t to t1e 6$&/oD&er', %'
,&/o,bte/62 $& o##re''%3e eBerc%'e o4 e9%&e&t /o9$%& t1$t 9,'t &e3er be '$&ct%o&e/. >Land ;an+ of the
hilippines vs. (ourt of Appeals, $%H 'CRA A*A?.
3 3 3 3 3 3
An action to !uiet title is a common la# emed" fo the emoval of an" cloud o doubt o uncetaint" on the title to
eal popet". 2t is essential fo the plaintiff o complainant to have a le(al o e!uitable title o inteest in the eal
popet", #hich is the sub8ect matte of the action. Also the deed, claim, encumbance o poceedin( that is bein(
alle(ed as cloud on plaintiffWs title must be sho#n to be in fact invalid o inopeative despite its prima
facieappeaance of validit" o le(al efficac" >Robles vs. (ourt of Appeals, @$H 'CRA +/?. & 3%eD o4 t1e
4ore-o%&- /%'c,''%o&, c6e$r62, t1e c6$%9 o4 /e4e&/$&t-$##e66$&t Re#,b6%c co&'t%t,te' $ c6o,/, /o,bt or
,&cert$%&t2 o& t1e t%t6e o4 #6$%&t%44-$##e66ee 7%ce&te L%9 t1$t c$& be re9o3e/ b2 $& $ct%o& to I,%et t%t6e.
:HEREFORE, in vie# of the foe(oin(, and findin( no evesible eo in the appealed Ma" A, $**1 7ecision of
Banch +, Re(ional Tial Cout of Cebu Cit", in Civil Case No. CEB-1$/*1, the said decision is UPHEL" !N"
!FFRME". Accodin(l", the appeal is "SMSSE" fo lac. of meit.)
<ndaunted, petitiones, thou(h the 6ffice of the 'olicito -eneal, filed #ith this Cout a petition fo evie# on
certiorari alle(in( that the Republic has emained the o#ne of =ot +@$ as held b" this Cout in Valdehueza vs.
Republic.
&
2n ou Resolution dated Mach 1, $**A, #e denied the petition outi(ht on the (ound that the Cout of Appeals did
not commit a evesible eo. Petitiones filed an u(ent motion fo econsideation but #e denied the sameD%t1
4%&$6%t2 in ou Resolution of Ma" 1/, $**A.
6n Ma" 1H, $**A, espondent filed an e0-parte motion fo the issuance of an ent" of 8ud(ment. ;e onl" noted
the motion in ou Resolution of Bul" 1$, $**A.
6n Bul" /, $**A, petitiones filed an u(ent pleaLmotion fo claification, #hich is actuall" a 'eco&/ 9ot%o& 4or
reco&'%/er$t%o&. Thus, in ou Resolution of 'eptembe &, $**A, #e simpl" noted #ithout action the motion
considein( that the instant petition #as alead" denied D%t1 4%&$6%t2 in ou Resolution of Ma" 1/, $**A.
6n 6ctobe $+, $**A, petitiones filed a ve" u(ent motion fo leave to file a motion fo econsideation of ou
Resolution dated 'eptembe &, $**A >#ith pa"e to efe the case to the En ;anc?. The" maintain that the
RepublicWs i(ht of o#neship has been settled in Valdehueza.
The basic issue fo ou esolution is #hethe the Republic has etained o#neship of =ot +@$ despite its failue to
pa" espondentWs pedecessos-in-inteest the 8ust compensation theefo pusuant to the 8ud(ment of the C,2
endeed as eal" as Ma" 1A, 1+A*.
2nitiall", #e must ule on the pocedual obstacle.
;hile #e commend the Republic fo the 5eal #ith #hich it pusues the pesent case, #e eiteate that its u(ent
motion fo claification filed on Bul" /, $**A is actuall" a second motion fo econsideation. This motion is
pohibited unde 'ection $, Rule %$, of the 1++/ Rules of Civil Pocedue, as amended, #hich povides0
$$$
)Sec. 2. 'econd motion for reconsideration. M No second motion fo econsideation of a 8ud(ment o final
esolution b" the same pat" shall be entetained.)
Conse!uentl", as mentioned ealie, #e simpl" noted #ithout action the motion since petitionesW petition #as
alead" denied #ith finalit".
Considein( the RepublicWs u(ent and seious insistence that it is still the o#ne of =ot +@$ and in the inteest of
8ustice, #e ta.e anothe had loo. at the contovesial issue in ode to detemine the veacit" of petitioneWs
stance.
6ne of the basic pinciples enshined in ou Constitution is that no peson shall be depived of his pivate popet"
#ithout due pocess of la#I and in e3popiation cases, an essential element of due pocess is that thee must be
8ust compensation #heneve pivate popet" is ta.en fo public use.
/
Accodin(l", 'ection +, Aticle 222, of ou
Constitution mandates0 )rivate property shall not be ta+en for public use !ithout *ust compensation.)
The Republic dise(aded the foe(oin( povision #hen it failed and efused to pa" espondentWs pedecessos-in-
inteest the 8ust compensation fo =ots +@$ and +@+. The len(th of time and the manne #ith #hich it evaded
pa"ment demonstate its abita" hi(h-handedness and confiscato" attitude. The final 8ud(ment in the
e3popiation poceedin(s >Civil Case No. /H1? #as enteed on !#r%6 +, 1948. Moe than half of a centu" has
passed, "et, to this da", the lando#ne, no# espondent, has emained empt"-handed. <ndoubtedl", ove %*
"eas of dela"ed pa"ment cannot, in an" #a", be vie#ed as fai. This is moe so #hen such dela" is accompanied
b" bueaucatic hassles. Appaent fom Valdehueza is the fact that espondentWs pedecessos-in-inteest #ee
(iven a )un aound) b" the RepublicWs officials and a(ents. 2n 1+%*, despite the benefits it deived fom the use of
the t#o lots, the National Aipots Copoation denied .no#led(e of the claim of espondentWs pedecessos-in-
inteest. Even Pesident -acia, #ho sent a lette to the Civil Aeonautics Administation and the 'eceta" of
National 7efense to e3pedite the pa"ment, failed in (antin( elief to them. And, on 'eptembe &, 1+&1, #hile the
Chief of 'taff of the Amed ,oces e3pessed #illin(ness to pa" the appaised value of the lots, nothin(
happened.la!phil.net
The Cout of Appeals is coect in sa"in( that RepublicWs dela" is conta" to the ules of fai pla", as JF,'t
co9#e&'$t%o& e9br$ce' &ot o&62 t1e correct /eter9%&$t%o& o4 t1e $9o,&t to be #$%/ to t1e oD&er' o4 t1e
6$&/, b,t $6'o t1e #$29e&t 4or t1e 6$&/ D%t1%& $ re$'o&$b6e t%9e 4ro9 %t' t$E%&-. :%t1o,t #ro9#t #$29e&t,
co9#e&'$t%o& c$&&ot be co&'%/ere/ TF,'t.OJ 2n 8uisdictions simila to ous, #hee an ent" to the e3popiated
popet" pecedes the pa"ment of compensation, it has been held that if the compensation is not paid in
a re$'o&$b6e t%9e, the pat" ma" be teated as a tespasse ab initio.
H
Coollail", in rovincial Government of 'orso)on vs. Vda. >e Villaroya,
+
simila to the pesent case, this Cout
e3pessed its dis(ust ove the (ovenmentWs ve3atious dela" in the pa"ment of 8ust compensation, thus0
JT1e #et%t%o&er' 1$3e bee& D$%t%&- 4or 9ore t1$& t1%rt2 2e$r' to be #$%/ 4or t1e%r 6$&/ D1%c1 D$' t$Ee& 4or
,'e $' $ #,b6%c 1%-1 'c1oo6. As a matte of fai pocedue, it is the dut" of the -ovenment, #heneve it ta.es
popet" fom pivate pesons a(ainst thei #ill, to suppl" all e!uied documentation and facilitate pa"ment of 8ust
compensation. T1e %9#o'%t%o& o4 ,&re$'o&$b6e reI,%re9e&t' $&/ 3eB$t%o,' /e6$2' be4ore e44ect%&-
#$29e&t %' &ot o&62 -$66%&- $&/ $rb%tr$r2 b,t $ r%c1 'o,rce o4 /%'co&te&t D%t1 -o3er&9e&t. T1ere '1o,6/
be 'o9e E%&/ o4 'D%4t $&/ e44ect%3e reco,r'e $-$%&'t ,&4ee6%&- $&/ ,&c$r%&- $ct' o4 9%//6e or 6oDer 6e3e6
b,re$,cr$t'.J
;e feel the same #a" in the instant case.
Moe than an"thin( else, ho#eve, it is the obstinac" of the Republic that pompted us to dismiss its petition
outi(ht. As eal" as M$2 19, 1966, in Valdehueza, this Cout mandated the Republic to pa" espondentWs
pedecessos-in-inteest the sum of P1&,$AH.A* as )easonable ma.et value of the t#o lots in !uestion.)
<nfotunatel", it did not compl" and allo#ed seveal decades to pass #ithout obe"in( this CoutWs mandate. 'uch
polon(ed obstinac" bespea.s of lac. of espect to pivate i(hts and to the ule of la#, #hich #e cannot
$$@
countenance. 2t is tantamount to confiscation of pivate popet". ;hile it is tue that all pivate popeties ae
sub8ect to the need of (ovenment, and the (ovenment ma" ta.e them #heneve the necessit" o the e3i(enc" of
the occasion demands, ho#eve, the Constitution (uaantees that #hen this (ovenmental i(ht of e3popiation is
e3ecised, it shall be attended b" compensation.
1*
,om the ta.in( of pivate popet" b" the (ovenment unde
the po#e of eminent domain, thee aises an implied pomise to compensate the o#ne fo his loss.
11
'i(nificantl", the above-mentioned povision of 'ection +, Aticle 222 of the Constitution is not a (ant but
a6%9%t$t%o& of po#e. This limitin( function is in .eepin( #ith the philosoph" of the Bill of Ri(hts a(ainst the
abita" e3ecise of (ovenmental po#es to the detiment of the individualWs i(hts. -iven this function, the
povision should theefoe be 'tr%ct62 intepeted a(ainst the e3popiato, the (ovenment, and 6%ber$662 in favo
of the popet" o#ne.
1$
2onicall", in opposin( espondentWs claim, the Republic is invo.in( this CoutWs 7ecision in Valdehueza" a
7ecision it uttel" defied. Go! could the Republic ac2uire o!nership over Lot <A# !hen it has not paid its o!ner
the *ust compensation" re2uired by la!" for more than %L years@ The eco(ni5ed ule is that title to the popet"
e3popiated shall pass fom the o#ne to the e3popiato onl" ,#o& 4,66 #$29e&t o4 t1e F,'t co9#e&'$t%o&.
Buispudence on this settled pinciple is consistent both hee and in othe democatic 8uisdictions. 2n Association
of 'mall Lando!ners in the hilippines" ,nc. et al." vs. 'ecretary of A)rarian Reform"
1@
thus0
JT%t6e to #ro#ert2 D1%c1 %' t1e ',bFect o4 co&/e9&$t%o& #rocee/%&-' /oe' &ot 3e't t1e co&/e9&or ,&t%6
t1e F,/-9e&t 4%B%&- F,'t co9#e&'$t%o& %' e&tere/ $&/ #$%/, but the condemnoWs title elates bac. to the date
on #hich the petition unde the Eminent 7omain Act, o the commissioneWs epot unde the =ocal 2mpovement
Act, is filed.
B B B !6t1o,-1 t1e r%-1t to $##ro#r%$te $&/ ,'e 6$&/ t$Ee& 4or $ c$&$6 %' co9#6ete $t t1e t%9e o4 e&tr2, t%t6e
to t1e #ro#ert2 t$Ee& re9$%&' %& t1e oD&er ,&t%6 #$29e&t %' $ct,$662 9$/e. >Emphasis supplied.?
2n -ennedy v. ,ndianapolis, the <' 'upeme Cout cited seveal cases holdin( that title to popet" does not pass
to the condemno until 8ust compensation had actuall" been made. 2n fact, the decisions appea to be unifom to
this effect. As eal" as 1H@H, in Rubottom v. McLure, it #as held that T$ct,$6 #$29e&t to t1e oD&er o4 t1e
co&/e9&e/ #ro#ert2 D$' $ co&/%t%o& #rece/e&t to t1e %&3e't9e&t o4 t1e t%t6e to t1e #ro#ert2 %& t1e St$teO
$6be%t T&ot to t1e $##ro#r%$t%o& o4 %t to #,b6%c ,'e.O 2n Re0ford v. -ni)ht, the Cout of Appeals of Ne# Ko. said
that the constuction upon the statutes #as that the fee did not vest in the 'tate until the pa"ment of the
compensation althou(h the authoit" to ente upon and appopiate the land #as complete pio to the pa"ment.
9enned" futhe said that Tbot1 o& #r%&c%#6e $&/ $,t1or%t2 t1e r,6e %' . . . t1$t t1e r%-1t to e&ter o& $&/ ,'e
t1e #ro#ert2 %' co9#6ete, $' 'oo& $' t1e #ro#ert2 %' $ct,$662 $##ro#r%$te/ ,&/er t1e $,t1or%t2 o4 6$D 4or $
#,b6%c ,'e, b,t t1$t t1e t%t6e /oe' &ot #$'' 4ro9 t1e oD&er D%t1o,t 1%' co&'e&t, ,&t%6 F,'t co9#e&'$t%o&
1$' bee& 9$/e to 1%9.J
6u o#n 'upeme Cout has held in Visayan Refinin) (o. v. (amus and aredes, that0
T4 t1e 6$D' D1%c1 De 1$3e eB1%b%te/ or c%te/ %& t1e #rece/%&- /%'c,''%o& $re $tte&t%3e62 eB$9%&e/ %t D%66
be $##$re&t t1$t t1e 9et1o/ o4 eB#ro#r%$t%o& $/o#te/ %& t1%' F,r%'/%ct%o& %' ',c1 $' to $44or/ $b'o6,te
re$'',r$&ce t1$t &o #%ece o4 6$&/ c$& be 4%&$662 $&/ %rre3oc$b62 t$Ee& 4ro9 $& ,&D%66%&- oD&er ,&t%6
co9#e&'$t%o& %' #$%/...OJ>Emphasis supplied.?
Cleal", #ithout full pa"ment of 8ust compensation, thee can be no tansfe of title fom the lando#ne to the
e3popiato. 6the#ise stated, the RepublicWs ac!uisition of o#neship is conditioned upon the full pa"ment of 8ust
compensation #ithin a easonable time.
1A
'i(nificantl", in Municipality of ;i7an v. Garcia
1%
this Cout uled that the e3popiation of lands consists of t#o
sta(es, to #it0
$$A
)3 3 3 The first is concened #ith the detemination of the authoit" of the plaintiff to e3ecise the po#e of
eminent domain and the popiet" of its e3ecise in the conte3t of the facts involved in the suit. 2t ends #ith an
ode, if not of dismissal of the action, )of condemnation declain( that the plaintiff has a la#ful i(ht to ta.e the
popet" sou(ht to be condemned, fo the public use o pupose descibed in the complaint, upon the pa"ment of
8ust compensation to be detemined as of the date of the filin( of the complaint) 3 3 3.
The second phase of the eminent domain action is concened #ith the detemination b" the cout of )the 8ust
compensation fo the popet" sou(ht to be ta.en.) This is done b" the cout #ith the assistance of not moe than
thee >@? commissiones. 3 3 3.
2t is onl" upon the completion of these t#o sta(es that e3popiation is said to have been completed. 2n Republic
v. 'alem ,nvestment (orporation"
1&
#e uled that, )the pocess is not completed until pa"ment of 8ust
compensation.) Thus, hee, the failue of the Republic to pa" espondent and his pedecessos-in-inteest fo a
peiod of %/ "eas endeed the e3popiation pocess incomplete.
The Republic no# a(ues that unde Valdehueza, espondent is not entitled to ecove possession of =ot +@$ but
onl" to demand pa"ment of its fai ma.et value. 6f couse, #e ae a#ae of the doctine that )non-pa"ment of
8ust compensation >in an e3popiation poceedin(s? does not entitle the pivate lando#nes to ecove possession
of the e3popiated lots.) This is ou ulin( in the ecent cases of Republic of the hilippines vs. (ourt of Appeals"
et al."
1/
and Reyes vs. National Gousin) Authority.
1H
1o#eve, the facts of the pesent case do not 8ustif" its
application. 2t beas stessin( that the Republic #as odeed to pa" 8ust compensation tD%ce,the first #as in the
e3popiation poceedin(s and the second, in Valdehueza. ,ift"-seven >%/? "eas have passed since then. :e
c$&&ot b,t co&'tr,e t1e Re#,b6%cO' 4$%6,re to #$2 F,'t co9#e&'$t%o& $' $ /e6%ber$te re4,'$6 o& %t'
#$rt. <nde such cicumstance, reco3er2 o4 #o''e''%o& is in ode. 2n seveal 8uisdictions, the couts held that
ecove" of possession ma" be had #hen popet" has been #on(full" ta.en o is #on(full" etained b" one
claimin( to act unde the po#e of eminent domain
1+
or D1ere $ r%-1t4,6 e&tr2 %' 9$/e $&/ t1e #$rt2
co&/e9&%&- re4,'e' to #$2 t1e co9#e&'$t%o& D1%c1 1$' bee& $''e''e/ or $-ree/ ,#o&H
$*
o fails o
efuses to have the compensation assessed and paid.
$1
The Republic also contends that #hee thee have been constuctions bein( used b" the milita", as in this case,
public inteest demands that the pesent suit should not be sustained.
2t must be emphasi5ed that an individual cannot be depived of his popet" fo the public
convenience.
$$
2nAssociation of 'mall Lando!ners in the hilippines" ,nc. vs. 'ecretary of A)rarian Reform,
$@
#e
uled0
)6ne of the basic pinciples of the democatic s"stem is that #hee the i(hts of the individual ae concened, the
end does not 8ustif" the means. 2t is not enou(h that thee be a valid ob8ectiveI it is also necessa" that the means
emplo"ed to pusue it be in .eepin( #ith the Constitution. Mee e3pedienc" #ill not e3cuse constitutional
shotcuts. T1ere %' &o I,e't%o& t1$t &ot e3e& t1e 'tro&-e't 9or$6 co&3%ct%o& or t1e 9o't ,r-e&t #,b6%c
&ee/, ',bFect o&62 to $ 4eD &ot$b6e eBce#t%o&', D%66 eBc,'e t1e b2#$''%&- o4 $& %&/%3%/,$6K' r%-1t'. t %' &o
eB$--er$t%o& to '$2 t1$t $ #er'o& %&3oE%&- $ r%-1t -,$r$&tee/ ,&/er !rt%c6e o4 t1e Co&'t%t,t%o& %' $
9$For%t2 o4 o&e e3e& $' $-$%&'t t1e re't o4 t1e &$t%o& D1o Do,6/ /e&2 1%9 t1$t r%-1t.
T1e r%-1t co3er' t1e #er'o&O' 6%4e, 1%' 6%bert2 $&/ 1%' #ro#ert2 ,&/er Sect%o& 1 o4 !rt%c6e o4 t1e
Co&'t%t,t%o&. :%t1 re-$r/ to 1%' #ro#ert2, t1e oD&er e&Fo2' t1e $//e/ #rotect%o& o4 Sect%o& 9, D1%c1
re$44%r9' t1e 4$9%6%$r r,6e t1$t #r%3$te #ro#ert2 '1$66 &ot be t$Ee& 4or #,b6%c ,'e D%t1o,t F,'t
co9#e&'$t%o&.J
The RepublicWs assetion that the defense of the 'tate #ill be in (ave dan(e if #e shall ode the evesion of =ot
+@$ to espondent is an ovestatement. :irst, =ot +@$ had ceased to opeate as an aipot. ;hat emains in the
site is 8ust the National 1istoical 2nstituteWs ma.in( statin( that =ot +@$ is the )former location of Lahu) Airport.)
And second, thee ae onl" thiteen >1@? stuctues located on =ot +@$, ei(ht >H? of #hich aere'%/e&ce
$#$rt9e&t' of milita" pesonnel. 6nl" t#o >$? buildin(s ae actuall" used as tainin( centes. Thus, pacticall"
$$%
spea.in(, the evesion of =ot +@$ to espondent #ill onl" affect a handful of milita" pesonnel. 2t #ill not esult to
)iepaable dama(e) o )dama(e be"ond pecunia" estimation,) as #hat the Republic vehementl" claims.
;e thus ule that the special cicumstances pevailin( in this case entitle espondent to ecove possession of the
e3popiated lot fom the Republic. <nless this fom of s#ift and effective elief is (anted to him, the (ave
in8ustice committed a(ainst his pedecessos-in-inteest, thou(h no fault o ne(li(ence on thei pat, #ill be
pepetuated. =et this case, theefoe, seve as a #a.e-up call to the Republic that in the e3ecise of its po#e of
eminent domain, necessail" in deo(ation of pivate i(hts, it must compl" #ith the Constitutional limitations. This
Cout, as the (uadian of the peopleWs i(ht, #ill not stand still in the face of the RepublicWs oppessive and
confiscato" ta.in( of pivate popet", as in this case.
At this point, it ma" be a(ued that espondent Eicente =im acted in bad faith in entein( into a contact of
mot(a(e #ith Ealdehue5a and Paneio despite the clea annotation in TCT No. $@+@A that =ot +@$ is )',bFect to
t1e #r%or%t2 o4 t1e N$t%o&$6 !%r#ort' Cor#or$t%o& ?to $cI,%re '$%/ #$rce6' o4 6$&/@ B B B ,#o& #re3%o,'
#$29e&t o4 $ re$'o&$b6e 9$rEet 3$6,e.J
The issue of #hethe o not espondent acted in bad faith is immateial considein( that the Republic did not
complete the e3popiation pocess. 2n shot, it failed to pefect its title ove =ot +@$ b" its failue to pa" 8ust
compensation. The issue of bad faith #ould have assumed elevance if the Republic actuall" ac!uied title ove
=ot +@$. 2n such a case, even if espondentWs title #as e(isteed fist, it #ould be the RepublicWs title o i(ht of
o#neship that shall be upheld. 0,t &oD, $'',9%&- t1$t re'#o&/e&t D$' %& b$/ 4$%t1, c$& ',c1 4$ct 3e't
,#o& t1e Re#,b6%c $ better t%t6e o3er Lot 932G ;e believe not. This is because in the fist place, the Republic
has no title to spea. of.
At an" ate, assumin( that espondent had indeed .no#led(e of the annotation, still nothin( #ould have
pevented him fom entein( into a mot(a(e contact involvin( =ot +@$ #hile the e3popiation poceedin( #as
pendin(. An" peson #ho deals #ith a popet" sub8ect of an e3popiation /oe' 'o $t 1%' oD& r%'E, ta.in( into
account the ultimate possibilit" of losin( the popet" in favo of the (ovenment. 1ee, the annotation meel"
seved as a caveat that the Republic had a #re4ere&t%$6 i(ht to ac!uie =ot +@$ ,#o& %t' #$29e&t o4 $
Jre$'o&$b6e 9$rEet 3$6,e.) 2t did not poscibe Ealdehue5a and Paneio fom e3ecisin( thei i(hts of
o#neship includin( thei i(ht to mot(a(e o even to dispose of thei popet". 2n Republic vs. 'alem ,nvestment
(orporation"
$A
#e eco(ni5ed the o#neWs absolute i(ht ove his popet" pendin( completion of the e3popiation
poceedin(, thus0
)2t is onl" upon the completion of these t#o sta(es that e3popiation is said to have been completed. Moeove, it
is onl" upon pa"ment of 8ust compensation that title ove the popet" passes to the (ovenment. Theefoe, until
the action fo e3popiation has been completed and teminated, o#neship ove the popet" bein( e3popiated
emains #ith the e(isteed o#ne. Co&'eI,e&t62, t1e 6$tter c$& eBerc%'e $66 r%-1t'#ert$%&%&- to $&
oD&er, %&c6,/%&- t1e r%-1t to /%'#o'e o4 1%' #ro#ert2 ',bFect to t1e #oDer o4 t1e St$te ,6t%9$te62 to
$cI,%re %t t1ro,-1 eB#ro#r%$t%o&.
2t beas emphasis that #hen Ealdehue5a and Paneio mot(a(ed =ot +@$ to espondent in 1+&A, the" #ee still
the o#nes theeof and thei title had not "et passed to the petitione Republic. 2n fact, it neve did. 'uch title o
o#neship #as endeed conclusive #hen #e cate(oicall" uled in Valdehueza that0 )t %' tr,e t1$t #6$%&t%44' $re
't%66 t1e re-%'tere/ oD&er' o4 t1e 6$&/, t1ere &ot 1$3%&- bee& $ tr$&'4er o4 '$%/ 6ot' %& 4$3or o4 t1e
Go3er&9e&t.)
,o espondentWs pat, it is easonable to conclude that he enteed into the contact of mot(a(e #ith Ealdehue5a
and Paneio full" a#ae of the e3tent of his i(ht as a mot(a(ee. A mot(a(e is meel" an accesso" contact
intended to secue the pefomance of the pincipal obli(ation. 6ne of its chaacteistics is that it
is %&'e#$r$b6e fom the popet". 2t adhees to the popet" e(adless of #ho its o#ne ma" subse!uentl"
be.
$%
Respondent must have .no#n that even if =ot +@$ is ultimatel" e3popiated b" the Republic, still, his i(ht
as a mot(a(ee is potected. 2n this e(ad, Aticle $1$/ of the Civil Code povides0
$$&
)At. $1$/. T1e 9ort-$-e eBte&/' to the natual accessions, to the impovements, (o#in( fuits, and the ents
o income not "et eceived #hen the obli(ation becomes due, and to t1e $9o,&t o4 t1e %&/e9&%t2 -r$&te/ o
o#in( to the popieto fom the insues of the popet" mot(a(ed, o %& 3%rt,e o4 eB#ro#r%$t%o& 4or #,b6%c ,'e,
#ith the declaations, amplifications, and limitations established b" la#, D1et1er t1e e't$te re9$%&' %& t1e
#o''e''%o& o4 t1e 9ort-$-or or %t #$''e' %& t1e 1$&/' o4 $ t1%r/ #er'o&.
2n summation, #hile the pevailin( doctine is that )the non-pa"ment of 8ust compensation does not entitle the
pivate lando#ne to ecove possession of the e3popiated lots,
$&
ho#eve, in cases #hee the (ovenment
failed to pa" 8ust compensation D%t1%& 4%3e L+M
$/
2e$r' 4ro9 t1e 4%&$6%t2 o4 t1e F,/-9e&t %& t1e eB#ro#r%$t%o&
#rocee/%&-', the o#nes concened shall have the i(ht to ecove possession of thei popet". This is in
consonance #ith the pinciple that )the (ovenment cannot .eep the popet" and dishono the 8ud(ment.)
$H
To be
sue, the five-"ea peiod limitation #ill encoua(e the (ovenment to pa" 8ust compensation punctuall". This is in
.eepin( #ith 8ustice and e!uit". Afte all, it is the dut" of the (ovenment, #heneve it ta.es popet" fom pivate
pesons a(ainst thei #ill, to facilitate the pa"ment of 8ust compensation. 2n (osculluela v. (ourt of Appeals,
$+
#e
defined 8ust compensation as not onl" the coect detemination of the amount to be paid to the popet" o#ne
but also the pa"ment of the popet" #ithin are$'o&$b6e t%9e. ;ithout pompt pa"ment, compensation cannot be
consideed )8ust.)
:HEREFORE, the assailed 7ecision of the Cout of Appeals in CA--.R. CE No. /$+1% is A,,2RME7 in toto.
The RepublicWs motion fo econsideation of ou Resolution dated Mach 1, $**A is 7EN2E7 #ith ,2NA=2TK. No
futhe pleadin(s #ill be allo#ed.
=et an ent" of 8ud(ment be made in this case.
'6 6R7ERE7.
7avide, B., C.B., Puno, Pan(aniban, Ouisumbin(, Knaes-'antia(o, Capio, Austia-Matine5, Coona, Capio-
Moales, Calle8o, '., A5cuna, Tin(a, Chico-Na5aio, and -acia, BB., concu.
SECOND DIVISION
[G.R. No. 146062. June 28, 2001]
SANTIAGO ESLABAN, JR., in his c!ci"# s $%o&ec" 'n(e% o) "he N"ion* I%%i("ion
A+,inis"%"ion, petitioner, vs. -LARITA ./A. /E ONORIO, respondent.
/ E - I S I O N
'EN/O0A, J.1
This is a petition for review of the decision
[1]
of the Court of Appeals which affired the decision of the !e"ional Trial
Court# $ranch %&# Surallah# South Cota'ato# orderin" the National Irri"ation Adinistration (NIA for 'revit)* to pa)
respondent the aount of +1,-#.1-/&, as 0ust copensation for the ta1in" of the latter2s propert)/
The facts are as follows3
!espondent Clarita Vda/ de Enorio is the owner of a lot in $aran"a) 4/ !o5as# Sto/ Ni6o# South Cota'ato with an area
of 78#.1% s9uare eters/ The lot# 1nown as :ot 1%1,;A;+ad;11;,,,.<&# is covered ') TCT No/ T;%%1%1 of the !e"istr) of
Deeds# South Cota'ato/ On Octo'er &# 18<1# Santia"o Esla'an# =r/# +ro0ect 4ana"er of the NIA# approved the construction
of the ain irri"ation canal of the NIA on the said lot# affectin" a %>#&&, s9uare eter portion thereof/ !espondent2s
$$/
hus'and a"reed to the construction of the NIA canal provided that the) 'e paid ') the "overnent for the area ta1en after the
processin" of docuents ') the Coission on Audit/
Soetie in 18<7# a !i"ht;of;?a) a"reeent was e5ecuted 'etween respondent and the NIA (E5h/ 1*/ The NIA then
paid respondent the aount of +>#1<,/,, as !i"ht;of;?a) daa"es/ !espondent su'se9uentl) e5ecuted an Affidavit of
?aiver of !i"hts and @ees where') she waived an) copensation for daa"es to crops and iproveents which she
suffered as a result of the construction of a ri"ht;of;wa) on her propert) (E5h/ %*/ The sae )ear# petitioner offered
respondent the su of +7.#,,,/,, ') wa) of aica'le settleent pursuant to E5ecutive Order No/ 1,7.# A1<# which provides
in part that
@inancial assistance a) also 'e "iven to owners of lands ac9uired under C/A/ 1>1# as aended# for the area or portion
su'0ect to the reservation under Section 1% thereof in such aounts as a) 'e deterined ') the ipleentin"
a"enc)Binstruentalit) concerned in consultation with the Coission on Audit and the assessor2s office concerned/
!espondent deanded pa)ent for the ta1in" of her propert)# 'ut petitioner refused to pa)/ Accordin"l)# respondent
filed on Dece'er 1,# 188, a coplaint a"ainst petitioner 'efore the !e"ional Trial Court# pra)in" that petitioner 'e ordered
to pa) the su of +111#%88/.. as copensation for the portion of her propert) used in the construction of the canal
constructed ') the NIA# liti"ation e5penses# and the costs/
+etitioner# throu"h the Office of the Solicitor;Ceneral# filed an Answer# in which he aditted that NIA constructed an
irri"ation canal over the propert) of the plaintiff and that NIA paid a certain landowner whose propert) had 'een ta1en for
irri"ation purposes# 'ut petitioner interposed the defense that3 (1* the "overnent had not consented to 'e suedD (%* the total
area used ') the NIA for its irri"ation canal was onl) %/%- hectares# not %>#&,, s9uare etersD and (7* respondent was not
entitled to copensation for the ta1in" of her propert) considerin" that she secured title over the propert) ') virtue of a
hoestead patent under C/A/ No/ 1>1/
At the pre;trial conference# the followin" facts were stipulated upon3 (1* that the area ta1en was %>#&&, s9uare etersD
(%* that it was a portion of the land covered ') TCT No/ T;%%1%1 in the nae of respondent and her late hus'and (E5h/ A*D
and (7* that this area had 'een ta1en ') the NIA for the construction of an irri"ation canal/
[%]
On Octo'er 1<# 1887# the trial court rendered a decision# the dispositive portion of which reads3
In view of the fore"oin"# decision is here') rendered in favor of plaintiff and a"ainst the defendant orderin" the defendant#
National Irri"ation Adinistration# to pa) to plaintiff the su of One Eundred Seven Thousand @ive Eundred Seventeen
+esos and Si5t) Centavos (+1,-#.1-/&,* as 0ust copensation for the 9uestioned area of %>#&&, s9uare eters of land owned
') plaintiff and ta1en ') said defendant NIA which used it for its ain canal plus costs/
[7]
On Nove'er 1.# 1887# petitioner appealed to the Court of Appeals which# on Octo'er 71# %,,,# affired the decision
of the !e"ional Trial Court/ Eence this petition/
The issues in this case are3
1/ ?EETEE! O! NOT TEE +ETITION IS DIS4ISSI$:E @O! @AI:F!E TO CO4+:G ?ITE TEE
+!OVISIONS O@ SECTION .# !F:E - O@ TEE !EVISED !F:ES O@ CIVI: +!OCEDF!E/
%/ ?EETEE! O! NOT :AND C!ANTED $G VI!TFE O@ A EO4ESTEAD +ATENT AND
SF$SEHFENT:G !ECISTE!ED FNDE! +!ESIDENTIA: DEC!EE 1.%8 CEASES TO $E +A!T O@
TEE +F$:IC DO4AIN/
7/ ?EETEE! O! NOT TEE VA:FE O@ =FST CO4+ENSATION SEA:: $E DETE!4INED @!O4 TEE
TI4E O@ TEE TAIINC O! @!O4 TEE TI4E O@ TEE @INA:ITG O@ TEE DECISION/
>/ ?EETEE! TEE A@@IDAVIT O@ ?AIVE! O@ !ICETS AND @EES EJECFTED $G !ES+ONDENT
EJE4+TS +ETITIONE! @!O4 4AIINC +AG4ENT TO TEE @O!4E!/
?e shall deal with these issues in the order the) are stated/
2i%s". !ule -# A. of the 188- !evised !ules on Civil +rocedure provides
$$H
Certification against forum shopping/ The plaintiff or principal part) shall certif) under oath in the coplaint or other
initiator) pleadin" assertin" a clai for relief# or in a sworn certification anne5ed thereto and siultaneousl) filed therewith3
(a* that he has not theretofore coenced an) action or filed an) clai involvin" the sae issues in an) court# tri'unal or
9uasi;0udicial a"enc) and# to the 'est of his 1nowled"e# no such other action or clai is pendin" thereinD ('* if there is such
other pendin" action or clai# a coplete stateent of the present status thereofD and (c* if he should thereafter learn that the
sae or siilar action or clai has 'een filed or is pendin"# he shall report the fact within five (.* da)s therefro to the court
wherein his aforesaid coplaint or initiator) pleadin" has 'een filed/
@ailure to copl) with the fore"oin" re9uireents shall not 'e cura'le ') ere aendent of the coplaint or other
initiator) pleadin" 'ut shall 'e cause for the disissal of the case without pre0udice# unless otherwise provided# upon otion
and after hearin" / / / /
$) reason of !ule >.# A> of the 188- !evised !ules on Civil +rocedure# in relation to !ule >%# A% thereof# the
re9uireent of a certificate of non;foru shoppin" applies to the filin" of petitions for review on certiorari of the decisions of
the Court of Appeals# such as the one filed ') petitioner/
As provided in !ule >.# A.# KThe failure of the petitioner to copl) with an) of the fore"oin" re9uireents re"ardin" / /
/ the contents of the docuent which should accopan) the petition shall 'e sufficient "round for the disissal thereof/L
The re9uireent in !ule -# A. that the certification should 'e e5ecuted ') the plaintiff or the principal eans that
counsel cannot si"n the certificate a"ainst foru;shoppin"/ The reason for this is that the plaintiff or principal 1nows 'etter
than an)one else whether a petition has previousl) 'een filed involvin" the sae case or su'stantiall) the sae
issues/ Eence# a certification si"ned ') counsel alone is defective and constitutes a valid cause for disissal of the petition/
[>]
In this case# the petition for review was filed ') Santia"o Esla'an# =r/# in his capacit) as +ro0ect 4ana"er of the NIA/
Eowever# the verification and certification a"ainst foru;shoppin" were si"ned ') Cesar E/ ConMales# the adinistrator of
the a"enc)/ The real part);in;interest is the NIA# which is a 'od) corporate/ ?ithout 'ein" dul) authoriMed ') resolution of
the 'oard of the corporation# neither Santia"o Esla'an# =r/ nor Cesar E/ ConMales could si"n the certificate a"ainst foru;
shoppin" accopan)in" the petition for review/ Eence# on this "round alone# the petition should 'e disissed/
Secon+. Coin" to the erits of the case# the land under liti"ation# as alread) stated# is covered ') a transfer certificate
of title re"istered in the !e"istr) Office of Ioronadal# South Cota'ato on 4a) 17# 18-&/ This land was ori"inall) covered ')
Ori"inal Certificate of Title No/ (+;%..8%* +;8<,, which was issued pursuant to a hoestead patent "ranted on @e'ruar) 1<#
18&,/ ?e have held3
?henever pu'lic lands are alienated# "ranted or conve)ed to applicants thereof# and the deed "rant or instruent of
conve)ance [sales patent] re"istered with the !e"ister of Deeds and the correspondin" certificate and owner2s duplicate of
title issued# such lands are deeed re"istered lands under the Torrens S)ste and the certificate of title thus issued is as
conclusive and indefeasi'le as an) other certificate of title issued to private lands in ordinar) or cadastral re"istration
proceedin"s/
[.]
The Solicitor;Ceneral contends# however# that an encu'rance is iposed on the land in 9uestion in view of A78 of the
:and !e"istration Act (now +/D/ No/ 1.%8# A>>* which provides3
Ever) person receivin" a certificate of title in pursuance of a decree of re"istration# and ever) su'se9uent purchaser of
re"istered land who ta1es a certificate of title for value in "ood faith shall hold the sae free fro all encu'rances e5cept
those noted on said certificate# and an) of the followin" encu'rances which a) 'e su'sistin"# nael)3
/ / / /
Third/ An) pu'lic hi"hwa)# wa)# private wa) esta'lished ') law# or an) "overnent irri"ation canal or lateral thereof#
where the certificate of title does not state that the 'oundaries of such hi"hwa)# wa)# irri"ation canal or lateral thereof# have
'een deterined/
As this provision sa)s# however# the onl) servitude which a private propert) owner is re9uired to reco"niMe in favor of
the "overnent is the easeent of a Kpu'lic hi"hwa)# wa)# private wa) esta'lished ') law# or an) "overnent canal or
$$+
lateral thereof where the certificate of title does not state that the 'oundaries thereof have 'een pre;deterined/L This iplies
that the sae should have 'een pre-existing at the tie of the re"istration of the land in order that the re"istered owner a)
'e copelled to respect it/ Conversel)# where the easeent is not pre-existing and is sou"ht to 'e iposed onl) after the land
has 'een re"istered under the :and !e"istration Act# proper e5propriation proceedin"s should 'e had# and 0ust copensation
paid to the re"istered owner thereof/
[&]
In this case# the irri"ation canal constructed ') the NIA on the contested propert) was 'uilt onl) on Octo'er &# 18<1#
several )ears after the propert) had 'een re"istered on 4a) 17# 18-&/ Accordin"l)# prior e5propriation proceedin"s should
have 'een filed and 0ust copensation paid to the owner thereof 'efore it could 'e ta1en for pu'lic use/
Indeed# the rule is that where private propert) is needed for conversion to soe pu'lic use# the first thin" o'viousl) that
the "overnent should do is to offer to 'u) it/
[-]
If the owner is willin" to sell and the parties can a"ree on the price and the
other conditions of the sale# a voluntar) transaction can then 'e concluded and the transfer effected without the necessit) of a
0udicial action/ Otherwise# the "overnent will use its power of einent doain# su'0ect to the pa)ent of 0ust
copensation# to ac9uire private propert) in order to devote it to pu'lic use/
Thi%+. ?ith respect to the copensation which the owner of the condened propert) is entitled to receive# it is
li1ewise settled that it is the ar1et value which should 'e paid or Kthat su of one) which a person# desirous 'ut not
copelled to 'u)# and an owner# willin" 'ut not copelled to sell# would a"ree on as a price to 'e "iven and received
therefor/L
[<]
@urther# 0ust copensation eans not onl) the correct aount to 'e paid to the owner of the land 'ut also the
pa)ent of the land within a reasona'le tie fro its ta1in"/ ?ithout propt pa)ent# copensation cannot 'e considered
K0ustL for then the propert) owner is ade to suffer the conse9uence of 'ein" iediatel) deprived of his land while 'ein"
ade to wait for a decade or ore 'efore actuall) receivin" the aount necessar) to cope with his loss/
[8]
Nevertheless# as
noted in Ansaldo v. Tantuico, Jr/#
[1,]
there are instances where the e5propriatin" a"enc) ta1es over the propert) prior to the
e5propriation suit# in which case 0ust copensation shall 'e deterined as of the tie of ta1in"# not as of the tie of filin" of
the action of einent doain/
$efore its aendent in 188-# !ule &-# A> provided3
Order of condemnation/ ?hen such a otion is overruled or when an) part) fails to defend as re9uired ') this rule# the court
a) enter an order of condenation declarin" that the plaintiff has a lawful ri"ht to ta1e the propert) sou"ht to 'e
condened# for the pu'lic use or purpose descri'ed in the coplaint upon the pa)ent of 0ust copensation to 'e deterined
as of the date of the filin" of the coplaint/ / / /
It is now provided that;
SEC/ >/ Order of expropriation/ If the o'0ections to and the defense a"ainst the ri"ht of the plaintiff to e5propriate the
propert) are overruled# or when no part) appears to defend as re9uired ') this !ule# the court a) issue an order of
e5propriation declarin" that the plaintiff has a lawful ri"ht to ta1e the propert) sou"ht to 'e e5propriated# for the pu'lic use or
purpose descri'ed in the coplaint# upon the pa)ent of 0ust copensation to 'e deterined as of the date of the ta1in" of
the propert) or the filin" of the coplaint# whichever cae first/
A final order sustainin" the ri"ht to e5propriate the propert) a) 'e appealed ') an) part) a""rieved there')/ Such appeal#
however# shall not prevent the court fro deterinin" the 0ust copensation to 'e paid/
After the rendition of such an order# the plaintiff shall not 'e peritted to disiss or discontinue the proceedin" e5cept on
such ters as the court dees 0ust and e9uita'le/ (Ephasis added*
Thus# the value of the propert) ust 'e deterined either as of the date of the ta1in" of the propert) or the filin" of the
coplaint# Kwhichever cae first/L Even 'efore the new rule# however# it was alread) held in Commissioner of Public
Higha!s v. "urgos
[11]
that the price of the land at the tie of ta1in"# not its value after the passa"e of tie# represents the
true value to 'e paid as 0ust copensation/ It was# therefore# error for the Court of Appeals to rule that the 0ust copensation
to 'e paid to respondent should 'e deterined as of the filin" of the coplaint in 188,# and not the tie of its ta1in" ') the
NIA in 18<1# 'ecause petitioner was alle"edl) reiss in its o'li"ation to pa) respondent# and it was respondent who filed the
coplaint/ In the case of "urgos#
[1%]
it was also the propert) owner who 'rou"ht the action for copensation a"ainst the
"overnent after %. )ears since the ta1in" of his propert) for the construction of a road/
$@*
Indeed# the value of the land a) 'e affected ') an) factors/ It a) 'e enhanced on account of its ta1in" for pu'lic
use# 0ust as it a) depreciate/ As o'served in #epublic v. $ara3
[17]
[?]here propert) is ta1en ahead of the filin" of the condenation proceedin"s# the value thereof a) 'e enhanced ') the
pu'lic purpose for which it is ta1enD the entr) ') the plaintiff upon the propert) a) have depreciated its value there')D or
there a) have 'een a natural increase in the value of the propert) fro the tie it is ta1en to the tie the coplaint is filed#
due to "eneral econoic conditions/ The owner of private propert) should 'e copensated onl) for what he actuall) losesD it
is not intended that his copensation shall e5tend 'e)ond his loss or in0ur)/ And what he loses is onl) the actual value of his
propert) at the tie it is ta1en/ This is the onl) wa) that copensation to 'e paid can 'e trul) 0ust# i/e/# K0ustL not onl) to the
individual whose propert) is ta1en# K'ut to the pu'lic# which is to pa) for itL / / / /
In this case# the proper valuation for the propert) in 9uestion is +1&#,>-/&1 per hectare# the price level for 18<%# 'ased
on the appraisal report su'itted ') the coission (coposed of the provincial treasurer# assessor# and auditor of South
Cota'ato* constituted ') the trial court to a1e an assessent of the e5propriated land and fi5 the price thereof on a per
hectare 'asis/
[1>]
2ou%"h. +etitioner finall) contends that it is e5ept fro pa)in" an) aount to respondent 'ecause the latter e5ecuted
an Affidavit of ?aiver of !i"hts and @ees of an) copensation due in favor of the 4unicipal Treasurer of $aran"a) Sto/
Ni6o# South Cota'ato/ Eowever# as the Court of Appeals correctl) held3
[I]f NIA intended to 'ind the appellee to said affidavit# it would not even have 'othered to "ive her an) aount for daa"es
caused on the iproveentsBcrops within the appellee2s propert)/ This# apparentl) was not the case# as can 'e "leaned fro
the dis'urseent voucher in the aount of +>#1<,/,, (pa"e 1, of the @older of E5hi'its in Civil Case 78&* issued on
Septe'er 1-# 18<7 in favor of the appellee# and the letter fro the Office of the Solicitor Ceneral recoendin" the "ivin"
of Kfinancial assistance in the aount of +7.#,,,/,,L to the appellee/
Thus# ?e are inclined to "ive ore credence to the appellee2s e5planation that the waiver of ri"hts and fees Kpertains onl) to
iproveents and crops and not to the value of the land utiliMed ') NIA for its ain canal/L
[1.]
34ERE2ORE# preises considered# the assailed decision of the Court of Appeals is here') A@@I!4ED with
4ODI@ICATION to the e5tent that the 0ust copensation for the contested propert) 'e paid to respondent in the aount
of +1&#,>-/&1 per hectare# with interest at the le"al rate of si5 percent (&N* per annu fro the tie of ta1in" until full
pa)ent is ade/ Costs a"ainst petitioner/
SO OR/ERE/.
"ellosillo, %Chairman&, 'uisumbing, "uena, and (e $eon, Jr., JJ., concur/