SECTION 3: PRIVACY OF COMMUNICATION

 RAMIREZ VS CA
 ZULUETA VS CA
 NAVARRO VS CA
 OPLE VS TORRES

SOCORRO D RAMIREZ VS HONORALBLE COURT OF APPEALS

GR NO. 93833, SEPTEMBER 28, 1995

DOCTRINES:

- "PRIVATE COMMUNICATION"; SCOPE. — Petitioner's contention that

the phrase "private communication" in Section 1 of R.A. 4200 does not
include "private conversations" narrows the ordinary meaning of the word
"communication" to a point of absurdity. The word communicate comes
from the Latin word communicare, meaning "to share or to impart." In its
ordinary signification, communication connotes the act of sharing or
imparting, as in a conversation, or signifies the "process by which meaning
or thoughts are shared between individuals through a common system of
symbols (as language signs or gestures)." These definitions are broad
enough to include verbal or nonverbal, written or expressive
communications of "meanings or thoughts" which are likely to include
the emotionally-charged exchange, on February 22, 1988, between
petitioner and private respondent, in the privacy of the latter's office. Any
doubts about the legislative body's meaning of the phrase "private
communication" are, furthermore, put to rest by the fact that the
terms "conversation" and "communication" were interchangeably
used by Senator Tañada in his Explanatory Note to the bill, quoted below:
"It has been said that innocent people have nothing to fear from their
conversations being overheard. But this statement ignores the usual
nature of conversations as well as the undeniable fact that most, if not all,
civilized people have some aspects of their lives they do not wish to
expose. Free conversations are often characterized by exaggerations,
obscenity, agreeable falsehoods, and the expression of anti-social desires
of views not intended to be taken seriously. The right to the privacy of
communication, among others, has expressly been assured by our
Constitution. Needless to state here, the framers of our Constitution
must have recognized the nature of conversations between
individuals and the significance of man's spiritual nature, of his
 feelings and of his intellect. They must have known that part of the
pleasures and satisfactions of life are to be found in the unaudited, and
free exchange of communication between individuals — free from every
unjustifiable intrusion by whatever means."

FACTS:

Civil case for damages was filed by petitioner Socorro Ramirez in RTC QC
alleging that PR Ester Garcia insulted and humiliated her in a "hostile and furious
mood" and in a manner offensive to petitioner's dignity and personality," contrary
to morals, good customs and public policy.

As a result of petitioner's recording of the event and alleging that the said act of
secretly taping the confrontation was illegal, private respondent filed a criminal
case before the Regional Trial Court of Pasay City for violation of Republic Act
4200, entitled "An Act to prohibit and penalize wire tapping and other related
violations of private communication, and other purposes."

Trial court agreeing with petitioner that 1) the facts charged do not constitute an
offense under R.A. 4200; and that 2) the violation punished by R.A. 4200 refers
to the taping of a communication by a person other than a participant to the
communication.

Finally, petitioner argues that R.A. 4200 penalizes the taping of a "private
communication," not a "private conversation" and that consequently, her act of
secretly taping her conversation with private respondent was not illegal under the
said act. 10.

HELD:

We disagree.

Section 1 RA 4200 clearly and unequivocally makes it illegal for any person, not
authorized by all the parties to any private communication to secretly record such
communication by means of a tape recorder. The law makes no distinction as to
whether the party sought to be penalized by the statute ought to be a party other
than or different from those involved in the private communication. The statute's
intent to penalize all persons unauthorized to make such recording is
underscored by the use of the qualifier "any." Consequently, as respondent Court
of Appeals correctly concluded, "even a (person) privy to a communication who
records his private conversation with another without the knowledge of the latter
(will) qualify as a violator" under this provision of R.A. 4200.
As to Senator Tanada: “this is a complete ban on tape recorded conversations
taken without the authorization of all parties”
“Well no. For example, I was to say that in meetings of the board of directors where
a tape recording is taken, there is no objection to this if all the parties know. It is but
fair that the people whose remarks and observations are being made should know
that these are being recorded.”

The unambiguity of the express words of the provision, taken together with the
above-quoted deliberations from the Congressional Record, therefore plainly
supports the view held by the respondent court that the provision seeks to
penalize even those privy to the private communications. Where the law makes
no distinctions, one does not distinguish. C

What R.A. 4200 penalizes are the acts of secretly overhearing , intercepting or
recording private communications by means of the devices enumerated therein.
The mere allegation that an individual made a secret recording of a private
communication by means of a tape recorder would suffice to constitute an
offense under Section 1 of R.A. 4200.

As to petitioner’s contention that the phrase “”private communication”

does not include “private conversation” narrow to “communication”. (see
doctrine above)
CECILIA ZULUETA VS COURT OF APPEALS
GR NO. 107383, FEBRUARY 20, 1996

DOCTRINE:
- RIGHT TO PRIVACY OF COMMUNICATION AND CORRESPONDENCE;
A PERSON BY CONTRACTING MARRIAGE, DOES NOT SHED
HIS/HER INTEGRITY OR HIS RIGHT TO PRIVACY AS AN INDIVIDUAL
AND THE CONSTITUTIONAL PROTECTION IS EVER AVAILABLE TO
HIM OR TO HER. — Indeed the documents and papers in question are
inadmissible in evidence. The constitutional injunction declaring "the
privacy of communication and correspondence [to be] inviolable" is no less
applicable simply because it is the wife (who thinks herself aggrieved by
her husband's infidelity) who is the party against whom the constitutional
provision is to be enforced. The only exception to the prohibition in the
Constitution is if there is a "lawful order [from a] court or when public safety
or order requires otherwise, as prescribed by law." Any violation of this
provision renders the evidence obtained inadmissible "for any purpose in
any proceeding."

- The intimacies between husband and wife do not justify any one of
them in breaking the drawers and cabinets of the other and in
ransacking them for any telltale evidence of marital infidelity. A
person, by contracting marriage, does not shed his/her integrity or
his right to privacy as an individual and the constitutional protection
is ever available to him or to her.

FACTS:

PETITIONER Cecilia Zulueta is the wife of private respondent Alfredo Martin.

Petitioner entered the clinic of her husband, a doctor of medicine in the presence
of the mother, driver, and private respondent’s secretary, forcibly opened the
drawers and cabinet in her husband’s clinic and took 157 documents
consisting of private correspondence between Dr. Martin and his alleged
paramours, greeting cards, cancelled checks, diaries.

Dr. Martin brought this action below for recovery of the documents and papers
and for damages against petitioner.

After trial, rendered judgment for private respondent, Dr. Alfredo Martin, declaring
him "the capital/exclusive owner of the properties described in paragraph 3 of
plaintiff's Complaint or those further described in the Motion to Return and
Suppress" and ordering Cecilia Zulueta and any person acting in her behalf to
immediately return the properties to Dr. Martin

HELD:
There is no question that the documents and papers in question belong to private
respondent, Dr. Alfredo Martin, and that they were taken by his wife, the herein
petitioner, without his knowledge and consent. For that reason, the trial court
declared the documents and papers to be properties of private respondent,
ordered petitioner to return them to private respondent and enjoined her from
using them in evidence.

Petitioner's contention has no merit(Alfredo Martin vs Alfonso Felix Jr.).

The case against Atty. Felix, Jr. was for disbarment. Among other things, private
respondent, Dr. Alfredo Martin, as complainant in that case, charged that in using
the documents in evidence, Atty. Felix, Jr. committed malpractice or gross
misconduct because of the injunctive order of the trial court.

Significantly, petitioner's admission was done not thru his counsel but by Dr. Martin
himself under oath. Such verified admission constitutes an affidavit, and, therefore,
receivable in evidence against him. Petitioner became bound by his admission. For
Cecilia to avail herself of her husband's admission and use the same in her action
for legal separation cannot be treated as malpractice.

(see doctrine above)

The law insures absolute freedom of communication between the spouses

by making it privileged. Neither husband nor wife may testify for or against
the other without the consent of the affected spouse while the marriage
subsists. Neither may be examined without the consent of the other as to any
communication received in confidence by one from the other during the marriage,
save for specified exceptions. But one thing is freedom of communication; quite
another is a compulsion for each one to share what one knows with the other.
And this has nothing to do with the duty of fidelity that each owes to the other.
FELIPE NAVARRO VS COURT OF APPEALS
GR NO. 121087, AUGUST 26, 1999

DOCTRINES:

- Provided, That the use of such record or any copies thereof as evidence in
any civil, criminal investigation or trial of offenses mentioned in Section 3
hereof, shall not be covered by this prohibition. Thus, the law prohibits
the overhearing, intercepting, or recording of private communications.
Since the exchange between petitioner Navarro and Lingan was not
private, its tape recording is not prohibited.

FACTS:

Stanley Jalbuena and Enrique Lingan who were reporters of the radio station
DWTI with Mario Ilagan went to the Entertainment City following reports that it
was showing nude dancers. After the three had seated themselves at a table and
ordered beer, a scantily clad dancer appeared on stage and began to perform a
strip act.

As she removed her brassieres, Jalbuena brought out his camera and took a
picture. At that point, the floor manager, Dante Liquin, with a security guard, Alex
Sioco, approached Jalbuena and demanded to know why he took a picture.
Jalbuena replied: "Wala kang pakialam, because this is my job." Sioco pushed
Jalbuena towards the table as he warned the latter that he would kill him. When
Jalbuena saw that Sioco was about to pull out his gun, he ran out of the joint
followed by his companion.

There was a heated argument between petitioner Navarro, police on duty, and
Lingan.
Petitioner Navarro turned to Jalbuena and said: "Kita mo yan ha, buhay kang
testigo, si Ike Lingan ang naghamon." He said to Sgt. Añonuevo: "Ilagay mo
diyan sa blotter, sa harap ni Alex Sioco at Dante Liquin, na si Ike Lingan ang
naghamon." He then poked his gun at the right temple of Jalbuena and made
him sign his name on the blotter. Jalbuena could not affix his signature. His right
hand was trembling and he simply wrote his name in print.

Unknown to petitioner Navarro, Jalbuena was able to record on tape the

exchange between petitioner and the deceased.

HELD:
In the instant case, petitioner Navarro has not shown that the trial court erred in
according weight to the testimony of Jalbuena. Indeed, Jalbuena's testimony is
n

confirmed by the voice recording he had made. It may be asked whether the
tape is admissible in view of R.A. No. 4200, which prohibits wire tapping.
The answer is in the affirmative.

Thus, the law prohibits the overhearing, intercepting, or recording of private

communications. Since the exchange between petitioner Navarro and Lingan
was not private, its tape recording is not prohibited. A voice recording is
authenticated by the testimony of a witness (1) that he personally recorded the
conversation; (2) that the tape played in court was the one he recorded;
and (3) that the voices on the tape are those of the persons such are
claimed to belong.

In the instant case, Jalbuena testified that he personally made the voice
recording; that the tape played in court was the one he recorded; and that the
speakers on the tape were petitioner Navarro and Lingan. A sufficient foundation
was thus laid for the authentication of the tape presented by the prosecution.

The voice recording made by Jalbuena established: (1) that there was a
heated exchange between petitioner Navarro and Lingan on the placing in the
police blotter of an entry against him and Jalbuena; and (2) that some form of
violence occurred involving petitioner Navarro and Lingan, with the latter getting
the worst of it.
BLAS OPLE VS RUBEN TORRES
GR NO. 12

SYNOPSIS AND DOCTRINES:

- The essence of privacy is the right to be let alone. The right to privacy is
recognized and enshrined in several provisions of the Constitution. Zones
of privacy are likewise recognized and protected in our laws. Unlike the
dissenters, we prescind from the premise that the right to privacy is a
fundamental right guaranteed by the Constitution, hence, it is the
burden of government to show that A. O. No. 308 is justified by some
compelling state interest and that it is narrowly drawn. What is not
arguable is the broadness, the vagueness, the overbreath of A. O. No. 308
which if implemented will put our people's right to privacy in clear and
present danger.

- A. O. No. 308 falls short of assuring that personal information which will be
gathered about our people will only be processed for unequivocally
specified purposes. Even while we strike down A. O. No. 308, we spell out
that the Court is not per se against the use of computers to accumulate,
store, process, retrieve and transmit data to improve our bureaucracy.
Given the record-keeping power of the computer, only the indifferent will
fail to perceive the danger that A. O. No. 308 gives the government the
power to compile a devastating dossier against unsuspecting citizens.

- THE USE OF BIOMETRICS AND COMPUTER TECHNOLOGY DOES

NOT ASSURE THE INDIVIDUAL OF A REASONABLE EXPECTATION
OF PRIVACY. — We reject the argument of the Solicitor General that an
individual has a reasonable expectation of privacy with regard to the
National ID and the use of biometrics technology as it stands on
quicksand. The reasonableness of a person's expectation of privacy
depends on a two part test: (1) whether by his conduct, the individual
has exhibited an expectation of privacy; and (2) whether this
expectation is one that society recognizes an reasonable. The factual
circumstances of the case determines the reasonableness of the
expectation. However, other factors, such as customs, physical
surroundings and practices of a particular activity, may serve to create or
diminish this expectation.

- The use of biometrics and computer technology in A.O. No. 308 does
not assure the individual of a reasonable expectation of privacy. As
technology advances, the level of reasonably expected privacy decreases.
The measure of protection granted by the reasonable expectation
 diminishes as relevant technology becomes more widely accepted. The
security of the computer data file depends not only on the physical
inaccessibility of the file but also on the advances in hardware and
software computer technology. A.O. No. 308 is so widely drawn that a
minimum standard for a reasonable expectation of privacy,
regardless of technology used, cannot be inferred from its
provisions.

FACTS:

The petition at bar is a commendable effort on the part of Senator Blas F. Ople to
prevent the shrinking of the right to privacy, which the revered Mr. Justice
Brandeis considered as "the most comprehensive of rights and the right most
valued by civilized men.'' Petitioner Ople prays that we invalidate
Administrative Order No. 308 entitled "Adoption of a National Computerized
Identification Reference System" on two important constitutional grounds, viz:
one, it is a usurpation of the power of Congress to legislate, and two, it
impermissibly intrudes on our citizenry's protected zone of privacy. We grant the
petition for the rights sought to be vindicated by the petitioner need stronger
barriers against further erosion.

A.O. No. 308 was issued by President Fidel V. Ramos on December 12, 1996.
“conveniently transact business with basic service and social security providers
and other government instrumentalities; this will require a computerized system
to properly and efficiently identify persons seeking basic services on social
security and reduce, if not totally eradicate, fraudulent transactions and
misrepresentations.”

PETITIONER CONTENTION – (1) the establishment of a national computerized

identification reference system requires a legislative act. The issuance of AO NO.
308 by the president of the republic of the Philippines is, therefore, an
unconstitutional usurpation of the legislative powers of the Congress of the Republic
of the Philippines. (2) implementation of AO 308 insidiously lays the groundwork for
a system which will violate the bill of rights enshrined in the Constitution.

RESPONDENT COUNTER-ARGUE – (1) A.O. NO. 308 [1996] PROTECTS AN

INDIVIDUAL'S INTEREST IN PRIVACY.

HELD:
AS TO THE POWER OF THE PRESIDENT TO ISSUE ADMINISTRATIVE
ORDER, RULES AND REGULATIONS - He has control over the executive
department, bureaus and offices. This means that he has the authority to assume
directly the functions of the executive department, bureau and office, or interfere
with the discretion of its officials.

Corollary to the power of control, the President also has the duty of supervising
the enforcement of laws for the maintenance of general peace and public order.
Thus, he is granted administrative power over bureaus and offices under his
control to enable him to discharge his duties effectively.

Administrative power is concerned with the work of applying policies and

enforcing orders as determined by proper governmental organs . It enables the
President to fix a uniform standard of administrative efficiency and
check the official conduct of his agents. To this end, he can issue
administrative orders, rules and regulations.

Under A.O. No. 308, a citizen cannot transact business with government
agencies delivering basic services to the people without the contemplated
identification card. No citizen will refuse to get this identification card for no one
can avoid dealing with government. It is thus clear as daylight that without the ID,
a citizen will have difficulty exercising his rights and enjoying his privileges. Given
this reality, the contention that A.O. No. 308 gives no right and imposes no duty
cannot stand.

Assuming, arguendo, that A.O. No. 308 need not be the subject of a law,
still it cannot pass constitutional muster as an administrative legislation
because facially it violates the right to privacy. The essence of privacy is
the "right to be let alone."

Zones of privacy are likewise recognized and protected in our laws. The Civil
Code provides that "[e]very person shall respect the dignity, personality, privacy
and peace of mind of his neighbors and other persons" and punishes as
actionable torts several acts by a person of meddling and prying into the privacy
of another. It also holds a public officer or employee or any private individual
liable for damages for any violation of the rights and liberties of another person,
and recognizes the privacy of letters and other private communications. The
Revised Penal Code makes a crime the violation of secrets by an officer, the
revelation of trade and industrial secrets, and trespass to dwelling. Invasion of
privacy is an offense in special laws like the Anti-Wiretapping Law, the Secrecy
of Bank Deposits Act and the Intellectual Property Code. The Rules of Court on
privileged communication likewise recognize the privacy of certain information.
Unlike the dissenters, we prescind from the premise that the right to privacy is
a fundamental right guaranteed by the Constitution, hence, it is the burden of
government to show that A.O. No. 308 is justified by some compelling state
interest and that it is narrowly drawn. (see doctrine above)

The heart of A.O. No. 308 lies in its Section 4 which provides for a
Population Reference Number (PRN) as a "common reference number to
establish a linkage among concerned agencies" through the use of
"Biometrics Technology" and "computer application designs.

**************** We can even grant, arguendo, that the computer data file will be
limited to the name, address and other basic personal information about the
individual. Even that hospitable assumption will not save A.O. No. 308 from
constitutional infirmity for again said order does not tell us in clear and
categorical terms how these information gathered shall be handled. It
does not provide who shall control and access the data, under what
circumstances and for what purpose. These factors are essential to
safeguard the privacy and guaranty the integrity of the information. Well to note,
the computer linkage gives other government agencies access to the information.
Yet, there are no controls to guard against leakage of information. When the
access code of the control programs of the particular computer system is broken,
an intruder, without fear of sanction or penalty, can make use of the data for
whatever purpose, or worse, manipulate the data stored within the system.

It is plain and we hold that A.O. No. 308 falls short of assuring that personal
information which will be gathered about our people will only be processed
for unequivocally specified purposes.

When information of a privileged character finds its way into the computer, it can
be extracted together with other data on the subject. Once extracted, the
information is putty in the hands of any person. The end of privacy begins.
(see doctrine above)

In no uncertain terms, we also underscore that the right to privacy does not
bar all incursions into individual privacy. The right is not intended to stifle
scientific and technological advancements that enhance public service and
the common good. It merely requires that the law be narrowly focused and a
compelling interest justifies such intrusions. Intrusions into the right must be
accompanied by proper safeguards and well-defined standards to prevent
unconstitutional invasions. We reiterate that any law or order that invades
individual privacy will be subjected by this Court to strict scrutiny.
The right to privacy is one of the most threatened rights of man living in
a mass society. The threats emanate from various sources —
governments, journalists, employers, social scientists, etc. In the case at
bar, the threat comes from the executive branch of government which by
issuing A.O. No. 308 pressures the people to surrender their privacy by
giving information about themselves on the pretext that it will facilitate
delivery of basic services.

Given the record-keeping power of the computer, only the indifferent will
fail to perceive the danger that A.O. No. 308 gives the government the
power to compile a devastating dossier against unsuspecting citizens. It
is timely to take note of the wellworded warning of Kalvin, Jr., "the
disturbing result could be that everyone will live burdened by an
unerasable record of his past and his limitations. In a way, the threat is that
because of its record-keeping, the society will have lost its benign capacity
to forget."

Oblivious to this counsel, the dissents still say we should not be too quick
in labelling the right to privacy as a fundamental right. We close with the
statement that the right to privacy was not engraved in our Constitution for
flattery.

NO DIGEST:
POLLO VS CONSTANTINO
VIVARES VS ST THERESA COLLEGE
ALEJANO VS CABUAY

SECTION 4: FREEDOM OF EXPRESSION

1. US VS BUSTOS
2. PEOPLE VS ALARCON
3. AYER PRODUCTIONS VS CAPULONG
4. BORJAL VS CA
5. REYES VS BAGATSING
6. PITA VS CA
 US VS BUSTOS
GR NO. L -12592, MARCH 8, 1918
DOCTRINE:

- The Malolos Constitution, the work of the Revolutionary Congress, in its bill
of rights, zealously guarded these basic rights. A reform so sacred to the
people of these Islands and won at so dear a cost should now be protected
and carried forward.
- The Constitution of the United States and the State constitutions guarantee
the right of freedom of speech and press and the right of assembly and
petition. Beginning with the President's Instructions to the Commission of
April 7, 1900, these gruaranties were made effective in the Philippines.
They are now part and parcel of the Organic Law — of the Constitution —
of the Philippines Islands.
- The doctrine of privileged communications rests upon public policy,
"which looks to the free and unfettered administration of justice, through,
as an incidental result, it may, in some instances, afford an immunity to the
evil-disposed and malignant slanderer."
- A privileged communication should not be subjected to microscopic
examination to discover grounds of malice or falsity. Such excessive
scrutiny will defeat the protection which the law throws over privileged
communications.
Right to criticize
FACTS

Question is whether or not the defendants and appellants are guilty of a libel of
Roman Punsalan, justice of peace of Macabebe Pampanga.

1915, numerous citizens of the Province of Pampanga assembled, prepared and

signed petition to the Exec Sec of law office of Crossfield and O’Brien charging
Ramon Punsalan with malfeasance in office and asking for his removal.
Petitioner was signed by 34 citizens. Allegations were:
 Francisca Polintan went to justice of peace, told her that he would draw up
the complaint for P5; then would take P3 which she paid; also kept her in
the house for four days as servant.
 Valentin Sunga – justice said that if he wished to win, he must give him
P50.
 Leoncio Quiambao – gave him P30 then the complaint was shelved.

Criminal action against Petitioners, now defendants, was instituted: the said
accused, voluntarily, illegally, and criminality and with malicious intent to prejudice
and defame Mr. Roman Punsalan Serrano who was at said time and place justice of
the peace of Macabebe and Masantol of this province, wrote, signed, and published
a writing which was false, scandalous, malicious, defamatory, and libelous against
the justice of the peace Mr. Roman Punsalan Serrano.

HELD
(see doctrine for historical background)

Net comes the period of American-Filipino cooperative effort. The Constitution of

the United States and the State constitutions guarantee the right of freedom of
speech and press and the right of assembly and petition. We are therefore, not
surprised to find President McKinley in that Magna Charta of Philippine Liberty,
the Instruction to the Second Philippine Commission, of April 7, 1900, laying
down the inviolable rule "That no law shall be passed abridging the freedom
of speech or of the press or of the rights of the people to peaceably
assemble and petition the Government for a redress of grievances."

We mention the foregoing facts only to deduce the proposition never to be

forgotten for an instant that the guaranties mentioned are part and parcel of the
Organic Law — of the Constitution — of the Philippines Islands.

The interest of society and the maintenance of good government demand a

full discussion of public affairs. Complete liberty to comment on the
conduct of public men is a scalpel in the case of free speech. The sharp
incision of its probe relieves the abscesses of officialdom. Men in public life
may suffer under a hostile and an unjust accusation; the wound can be assuaged
with the balm of a clear conscience. A public officer must not be too thin-skinned
with reference to comment upon his official acts.

Only thus can the intelligence and dignity of the individual be exalted. Of
course, criticism does not authorized defamation. Nevertheless, as the
individual is less than the State, so must expected criticism be born for the
common good. Rising superior to any official, or set of officials, to the
Chief Executive, to the Legislature, to the Judiciary— to any or all the
agencies of Government — public opinion should be the constant source
of liberty and democracy.

The guaranties of a free speech and a free press include the right to
criticize judicial conduct. The administration of the law is a matter of vital
public concern. Whether the law is wisely or badly enforced is, therefore, a
fit subject for proper comment.
In the words of Mr. Justice Gayner, who contributed so largely to the law of libel.
"The people are not obliged to speak of the conduct of their officials in whispers
or with bated breath in a free government, but only in a despotism.”

A pertinent illustration of the application of qualified privilege is a complaint

made in good faith and without malice in regard to the character or conduct of a
public official when addressed to an officer or a board having some interest or
duty in the matter. Even when the statements are found to be false, if there is
probable cause for belief in their truthfulness and the charge is made in good
faith, the mantle of privilege may still cover the mistake of the individual. But the
statements must be made under an honest sense of duty; a self-seeking motive
is destructive.

The rule is that if a party applies to the wrong person through some natural and
honest mistake as to the respective functions of various officials such
unintentional error will not take the case out of the privilege.

As a general rule words imputing to a judge or a justice of the peace dishonesty

or corruption or incapacity or misconduct touching him in his office are
actionable. But as suggested in the beginning we do not have present a simple
case of direct and vicious accusations published in the press, but of charges
predicated on affidavits made to the proper official and thus qualifiedly privileged.
Express malice has not been proved by the prosecution. Further, although the
charges are probably not true as to the justice of the peace, they were
believed to be true by the petitioners.

Good faith surrounded their action. Probable cause for them to think that
malfeasance or misfeasance in office existed is apparent. The ends and the
motives of these citizens — to secure the removal from office of a person
thought to be venal — were justifiable. In no way did they abuse the
privilege

We find the defendants and appellants entitled to the protection of the rules
concerning qualified privilege, growing out of constitutional guaranties in
our bill of rights. Instead of punishing citizens for an honest endeavor to
improve the public service, we should rather commend them for their good
citizenship. The defendants and appellants are acquitted with the costs de
officio.
 PEOPLE OF THE PHILIPPINES VS ALARCON
GR NO. 46551, DECEMBER 12, 1939
DOCTRINES:
- It must, however, clearly appear that such publications do impede,
interfere with, and embarrass the administration of justice before the
author of the publications should be held for contempt.
- what is thus sought to be shielded against the influence of newspaper
comments is the all-important duty of the court to administer justice in the
decision of a pending case. There is no pending case to speak of when
and once the court has come upon a decision and has lost control either to
reconsider or amend it.

FACTS

The People of the Philippines vs. Salvador Alarcon, et al., convicting the accused
therein except one — of the crime of robbery committed in band, a denunciatory
letter, signed by one Luis M. Taruc, was addressed to His Excellency, the
President of the Philippines.

Federico Manga as a columnist of the Tribune, newspaper of general circulation

HELD
The elements of contempt by newspaper publications are well defined by
the cases adjudicated in this as in other jurisdictions. Newspaper
publications tending to impede, obstruct, embarrass, or influence the
courts in administering justice in a pending suit or proceeding constitutes
criminal contempt which is summarily punish able by the courts. (see
doctrine above)

That, we believe, is the case at bar, for here we have a concession that the letter
complained of was published after the Court of First Instance of Pampanga had
decided the aforesaid criminal case for robbery in band, and after that decision
had been appealed to the Court of Appeals. The fact that a motion to reconsider
its order confiscating the bond of the accused therein was subsequently filed may
be admitted; but, the important consideration is that it was then without power to
reopen or modify the decision which it had rendered upon the merits of the case,
and could not have been influenced by the questioned publication.
Contempt of court is in the nature of a criminal offense (Lee Yick Hon vs.
Collector of Customs, 41 Phil., 548), and in considering the probable effects
of the article alleged to be contemptuous, every fair and reasonable
inference consistent with the theory of defendant's innocence will be
indulged (State v. New Mexican Printing Co., 25 N. M., 102, 177 p. 751), and
where a reasonable doubt in fact or in law exists as to the guilt of one of
constructive contempt for interfering with the due administration of justice
the doubt must be resolved in his favor, and he must be acquitted. (State v.
Hazel tine, 82 Wash., 81, 143 p. 436.) The appealed order is hereby reversed,
and the respondent acquitted.
 AYER PRODUCTIONS VS HON. IGNACIO CAPULONG
GR NO. 82380, APRIL 29, 1988

DOCTRINES:
- The freedom of speech and of expression, includes the freedom to film and
produce motion pictures and to exhibit such motion pictures in theaters or
to diffuse them through television. In our day and age, motion pictures are
a universally utilized vehicle of communication and medium of expression.
Along with the press, radio and television, motion pictures constitute a
principal medium of mass communication for information, education and
entertainment.(1)
- The circumstance that the production of motion picture films is a
commercial activity expected to yield monetary profit, is not a
disqualification for availing of freedom of speech and of expression. In our
community as in many other countries, media facilities are owned either by
the government or the private sector but the private sector-owned media
facilities commonly require to be sustained by being devoted in whole or in
part to revenue producing activities. Indeed, commercial media constitute
the bulk of such facilities available in our country and hence to exclude
commercially owned and operated media from the exercise of
constitutionally protected freedom of speech and of expression can only
result in the drastic contraction of such constitutional liberties in our
country.(2)
- The production and filming by petitioners of the projected motion picture
"The Four Day Revolution" does not, in the circumstances of this case,
constitute an unlawful intrusion upon private respondent's "right of privacy."
The respondent Judge should have stayed his hand, instead of issuing an
ex-parte Temporary Restraining Order one day after filing of a complaint
by the private respondent and issuing a Preliminary Injunction twenty (20)
days later; for the projected motion picture was as yet uncompleted and
hence not exhibited to any audience. Neither private respondent nor the
respondent trial Judge knew what the completed film would precisely look
like. There was, in other words, no "clear and present danger" of any
violation of any right to privacy that private respondent could lawfully
assert. (3)

FACTS:

Petitioner Hal McElroy, Australian film maker and his movie production, Ayer
Production envisioned the filming for commercial viewing and for Philippine and
international release, the historic peaceful struggle of the Filipinos at EDSA.
The proposed motion picture entitled "The Four Day Revolution" was endorsed
by the
Movie Television Review and Classification Board as well as the other
government agencies consulted. General Fidel Ramos also signified his approval
of the intended film production.

Synopsis of the movie: "The Four Day Revolution is a six hour mini-series about
People Power — a unique event in modern history — that made possible the
peaceful revolution in the Philippines in 1986.

Faced with the task of dramatising these remarkable events, screenwriter David
Williamson and history Prof. Al McCoy have chosen a 'docu-drama' style and
created [four] fictitious characters to trace the revolution from the death of Senator
Aquino, to the February revolution and the fleeing of Marcos from the country. These
characters' stories have been woven through the real events to help our huge
international audience understand this extraordinary period in Filipino history.”

December 21, 1987, PR Enrile replied that he would not and will not approve of the
use appropriation of his name or that any member of his famly in any production.

PR filed a complaint with application for TRO, seeking to enjoin petitioners from
producing the movie; that it is without the consent of PR and over his objection.

Private respondents seasonably filed his consolidated answer invoking in the main
a right of privacy.

Petitioners claim that in producing and filming the movie, they are exercising their
freedom of speech and of expression protected under the Constitution.

HELD:
See doctrine above (1)

In Gonzales vs Katigbak, Chief Justice Fernando “Motion pictures are important

both as a medium for the communication of ideas and the expression of the artistic
impulse. Their effects on the perception by our people of issues and public officials
or public figures as well as the prevailing cultural traits is considerable.”

This freedom is available in our country both to locally-owned and to

foreign-owned motion picture companies. Furthermore, the circumstance
that the production of motion picture films is a commercial activity
expected to yield monetary profit, is not a disqualification for availing of
freedom of speech and of expression. (see doctrine above) (2)

The right of privacy or "the right to be let alone," 6 like the right of free expression,
is not an absolute right. A limited intrusion into a person's privacy has long been
regarded as permissible where that person is a public figure and the information
sought to be elicited from him or to be published about him constitute matters of
a public character. Succinctly put, the right of privacy cannot be invoked to resist
publication and dissemination of matters of public interest. The interest sought
to be protected by the right of privacy is the right to be free from
"unwarranted publicity, from the wrongful publicizing of the private affairs
and activities of an individual which are outside the realm of legitimate
public concern.

Contention of the private respondent was heavily embedded in the Lagunzad

case, HOWEVER, Lagunzad the licensee in effect claimed, in the name of
freedom of speech and expression, a right to produce a motion picture biography
at least partly "fictionalized" of Moises Padilla without the consent of and without
paying pre-agreed royalties to the widow and family of Padilla. In this case, the
validity of such agreement will have to be upheld particularly because the limits
of freedom of expression are reached when expression touches upon
matters of essentially private concern.

DECISION - Whether the "balancing of interests test" or the "clear and present
danger test" be applied in respect of the instant Petitions, the Court believes that
a different conclusion must here be reached: The production and filming by
petitioners of the projected motion picture "The Four Day Revolution" does not,
in the circumstances of this case, constitute an unlawful intrusion upon
private respondent's "right of privacy.". (see doctrine above) (3)

The subject matter of "The Four Day Revolution" relates to the non-bloody
change of government that took place at Epifanio de los Santos Avenue in
February 1986, and the train of events which led up to that denouement. Clearly,
such subject matter is one of public interest and concern. Indeed, it is,
petitioners' argue, of international interest. The subject thus relates to a
highly critical stage in the history of this country and as such, must be
regarded as having passed into the public domain and as an appropriate
subject for speech and expression and coverage by any form of mass
media.

The subject matter, as set out in the synopsis provided by the petitioners and
quoted above, does not relate to the individual life and certainly not to the
private life of private respondent Ponce Enrile.

Unlike in Lagunzad, which concerned the life story of Moises Padilla necessarily
including at least his immediate family, what we have here is not a film
biography, more or less fictionalized, of private respondent Ponce Enrile. "The
Four Day Revolution" is not principally about, nor is it focused upon, the man
Juan Ponce Enrile; but it is compelled, if it is to be historical, to refer to the
role played by Juan Ponce Enrile in the precipitating and the constituent
events of the change of government in February 1986

Profs. Prosser and Keeton, “A public figure has been defined as a person who,
by his accomplishments, fame, or mode of living, or by adopting a
profession or calling which gives the public a legitimate interest in his
doings, his affairs, and his character, has become a 'public personage.' He
is, in other words, a celebrity. Obviously to be included in this category are those
who have achieved some degree of reputation by appearing before the public,”
“The privilege of giving publicity to news, and other matters of public interest,
was held to arise out of the desire and the right of the public to know what is
going on in the world, and the freedom of the press and other agencies of
information to tell it.”
“The privilege of enlightening the public was not, however, limited to the
dissemination of news in the sense of current events. It extended also to
information or education, or even entertainment and amusement, by books,
articles, pictures, films and broadcasts concerning interesting phases of human
activity in general, as well as the reproduction of the public scene in newsreels
and travelogues.”

Private respondent is a "public figure" precisely because, inter alia, of his

participation as a principal actor in the culminating events of the change of
government in February 1986. Because his participation therein was major in
character, a film reenactment of the peaceful revolution that fails to make
reference to the role played by private respondent would be grossly unhistorical.
The right of privacy of a "public figure" is necessarily narrower than that of an
ordinary citizen. Private respondent has not retired into the seclusion of simple
private citizenship. He continues to be a "public figure." After a successful
political campaign during which his participation in the EDSA Revolution was
directly or indirectly referred to in the press, radio and television, he sits in a very
public place, the Senate of the Philippines.

There must, in other words, be no knowing or reckless disregard of truth in

depicting the participation of private respondent in the EDSA Revolution.
There must, further, be no presentation of the private life of the unwilling
private respondent and certainly no revelation of intimate or embarrassing
personal facts. The proposed motion picture should not enter into what
Mme. Justice Melencio-Herrera in Lagunzad referred to as "matters of
essentially private concern."
 ARTURO BORJAL VS COURT OF APPEALS
GR NO. 126466, JANUARY 14, 1999
DOCTRINES:
- PUBLICATIONS WHICH ARE PRIVILEGED FOR REASONS OF PUBLIC
POLICY ARE PROTECTED BY THE CONSTITUTIONAL GUARANTY OF
FREEDOM OF SPEECH. — Indisputably, petitioner Borjal's questioned
writings are not within the exceptions of Art. 354 of the Revised Penal
Code for, as correctly observed by the appellate court, they are neither
private communications nor fair and true report without any comments or
remarks. However this does not necessarily mean that they are not
privileged. To be sure, the enumeration under Art. 354 is not an exclusive
list of qualifiedly privileged communications since fair commentaries on
matters of public interest are likewise privileged. The rule on privileged
communications had its genesis not in the nation's penal code but in
the Bill of Rights of the Constitution guaranteeing freedom of speech
and of the press. As early as 1918, in United States vs. Cañete (38 Phil.
253), this Court ruled that publications which are privileged for
reasons of public policy are protected by the constitutional guaranty
of freedom of speech. This constitutional right cannot be abolished
by the mere failure of the legislature to give it express recognition in
the statute punishing libels.
- to be more specific, no culpability could be imputed to petitioners for the
I

alleged offending publication without doing violence to the concept of

privileged communications implicit in the freedom of the press. As was so
well put by Justice Malcolm in Bustos: 'Public Policy, the welfare of
society, and the orderly administration of government have demanded
protection of public opinion. The inevitable and incontestable result has
been the development and adoption of the doctrine of privilege.' The
doctrine formulated in these two (2) cases resonates the rule that
privileged communications must, sui generis, be protective of public
opinion.
- In order that such discreditable imputation to a public official may be
actionable, it must either be a false allegation of fact or a comment
based on a false supposition. If the comment is an expression of
opinion, based on established facts, then it is immaterial that the
opinion happens to be mistaken, as long as it might reasonably be
inferred from the facts
- Malice is bad faith or bad motive. Primarily, private respondent failed
to substantiate by preponderant evidence that petitioner was animated
by a desire to inflict unjustifiable harm on his reputation, or that the articles
were written and published without good motives or justifiable ends. On the
other hand, we find petitioner Borjal to have acted in good faith. Moved
by a sense of civic duty and prodded by his responsibility as a
 newspaperman, he proceeded to expose and denounce what he perceived
to be a public deception. Surely, we cannot begrudge him for that. Every
citizen has the right to enjoy a good name and reputation, but we do not
consider that petitioner Borjal has violated that right in this case nor
abused his press freedom. Furthermore, to be considered malicious, the
libelous statements must be shown to have been written or published with
the knowledge that they are false or in reckless disregard or whether they
are false or not. (THIS)

FACTS:
The court is asked to reverse the Court of Appeals in Wenceslao VS Borjal, that
Borjal and Soliven are solidarily liable for damages for writing and publishing
certain articles claimed to be derogatory and offensive to Francisco Wenceslao.

Petitioners are incorporators of Philippines Today, now PhilStar. Borjal was the
President and Soliven was still a Publisher.

PR is a civil engineer, businessman, business consultant. In 1988 he served as a

technical adviser of Congressman Fabian Sison, then Chairman of the House of
Representatives Sub-Committee on Industrial Policy.

There was a congressional hearing participated in by the private sector in the

transport industry and government agencies concerned in order to find ways and
means to solve the transportation crisis. More importantly, the objective of the
FNCLT was to draft an omnibus bill that would embody a long-term land
transportation policy for presentation to Congress.

PR was elected Executive Director.

Petitioner Borjal wrote several articles dealt with the alleged anomalous
activities of an "organizer of a conference" without naming or identifying private
respondent. Neither did it refer to the FNCLT as the conference therein
mentioned.

Private respondent reacted to the articles. He sent a letter to The Philippine

Star insisting that he was the "organizer" alluded to in petitioner Borjal's columns.
In a subsequent letter to The Philippine Star, private respondent refuted the
matters contained in petitioner Borjal's columns and openly challenged him in this
manner — “””To test if Borjal has the guts to back up his holier than thou attitude, I
am prepared to relinquish this position in case it is found that I have misappropriated
even one peso of FNCLT money. On the other hand, if I can prove that Borjal has
used his column as a 'hammer' to get clients for his PR Firm, AA Borjal Associates,
he should resign from the STAR and never again write a column. Is it a deal?”””
Private respondent filed a criminal case for libel against petitioners Borjal and
Soliven, among others.

HELD:

In order to maintain a libel suit, it is essential that the victim be identifiable

although it is not necessary that he be named. It is also not sufficient that the
offended party recognized himself as the person attacked or defamed, but it must
be shown that at least a third person could identify him as the object of the
libelous publication. Regrettably, these requisites have not been complied
with in the case at bar.

Questioned articles written by Borjal do not identify private respondent

Wenceslao as the organizer of the conference. The first of the Jaywalker
articles which appeared in the 31 May 1989 issue of The Philippine Star yielded
nothing to indicate that private respondent was the person referred to therein.
Surely, as observed by petitioners, there were millions of "heroes" of the
EDSA Revolution and anyone of them could be "selfproclaimed" or an
"organizer of seminars and conferences." As a matter of fact, in his 9 June
1989 column petitioner Borjal wrote about the "so-called First National
Conference on Land Transportation whose principal organizers are not
specified."

No less than private respondent himself admitted that the FNCLT had
several organizers and that he was only a part of the organization.
Identification is grossly inadequate when even the alleged offended party is
himself unsure that he was the object of the verbal attack

A privileged communication may be either absolutely privileged or qualifiedly

privileged. Absolutely privileged communications are those which are not
actionable even if the author has acted in bad faith. An example is found in Sec.
11, Art. VI, of the 1987 Constitution which exempts a member of Congress from
liability for any speech or debate in the Congress or in any Committee thereof.
Upon the other hand, qualifiedly privileged communications containing
defamatory imputations are not actionable unless found to have been made
without good intention or justifiable motive. To this genre belong "private
communications" and "fair and true report without any comments or remarks."

Indisputably, petitioner Borjal's questioned writings are not within the exceptions
of Art. 354 of The Revised Penal Code for, as correctly observed by the
appellate court, they are neither private communications nor fair and true
report without any comments or remarks. However this does not necessarily
mean that they are not privileged. To be sure, the enumeration under Art. 354
is not an exclusive list of qualifiedly privileged communications since fair
commentaries on matters of public interest are likewise privileged. The
rule on privileged communications had its genesis not in the nation's penal code
but in the Bill of Rights of the Constitution guaranteeing freedom of speech and
of the press.

To reiterate, fair commentaries on matters of public interest are privileged and

constitute a valid defense in an action for libel or slander. The doctrine of fair
comment means that while in general every discreditable imputation
publicly made is deemed false, because every man is presumed innocent
until his guilt is judicially proved, and every false imputation is deemed
malicious, nevertheless, when the discreditable imputation is directed
against a public person in his public capacity, it is not necessarily
actionable. In order that such discreditable imputation to a public official may be
actionable, it must either be a false allegation of fact or a comment based on a
false supposition. If the comment is an expression of opinion, based on
established facts, then it is immaterial that the opinion happens to be mistaken,
as long as it might reasonably be inferred from the facts.
There is no denying that the questioned articles dealt with matters of public
interest.

An organization such as the FNCLT aiming to reinvent and reshape the

transportation laws of the country and seeking to source its funds for the
project from the public at large cannot dissociate itself from the public
character of its mission.

While, generally, malice can be presumed from defamatory words, the

privileged character of a communication destroys the presumption of
malice. The onus of proving actual malice then lies on plaintiff, private
respondent Wenceslao herein. He must bring home to the defendant,
petitioner Borjal herein, the existence of malice as the true motive of his
conduct.

(SEE DOCTRINE ABOVE) (THIS)

But we nevertheless find these at least to have been based on reasonable
grounds formed after the columnist conducted several personal interviews and
after considering the varied documentary evidence provided him by his sources.

Even assuming that the contents of the articles are false, mere error,
inaccuracy or even falsity alone does not prove actual malice. Errors or
misstatements are inevitable in any scheme of truly free expression and
debate. Consistent with good faith and reasonable care, the press should
not be held to account, to a point of suppression, for honest mistakes or
imperfections in the choice of language.

US VS BUSTOS in re: Public officials.

For we have always strongly maintained, as we do now, that freedom of

expression is man's birthright — constitutionally protected and guaranteed, and
that it has become the singular role of the press to act as its "defensor fidei " in a
democratic society such as ours. But it is also worth keeping in mind that the
press is the servant, not the master, of the citizenry, and its freedom does not
carry with it an unrestricted hunting license to prey on the ordinary citizen .
 JOSE B.L. REYES VS RAMON BAGATSING
GR NO. L-65366, NOVEMBER 6, 1983

DOCTRINES:

- Free speech, like free press, may be identified with the liberty to discuss
publicly and truthfully any matter of public concern without censorship or
punishment. There is to be then no previous restraint on the
communication of views or subsequent liability whether in libel suits,
prosecution for sedition, or action for damages, or contempt proceedings
unless there be a "clear and present danger of a substantive evil that the
State has a right to prevent." Freedom of assembly connotes the right of
the people to meet peaceably for consultation and discussion of matters of
public concern. It is entitled to be accorded the utmost deference and
respect. It is not to be limited, much less denied, except on a showing,
as is the case with freedom of expression, of a clear and present
danger of a substantive evil that the state has a right to prevent.
- NON-EXISTENCE IN CASE AT BAR A CLEAR AND PRESENT
DANGER TO JUSTIFY A DENIAL OF A PERMIT. — While the general
rule is that a permit should recognize the right of the applicants to hold
their assembly at a public place of their choice, another place may be
designated by the licensing authority if it be shown that there is a clear and
present danger of a substantive evil if no such change were made.
- TEEHANKEE’S OPINION: “The Chief Justice's opinion of the Court
reaffirms the doctrine of Primicias vs. Fugoso, 80 Phil. 71 that "the right to
freedom of speech and to peacefully assemble and petition the
government for redress of grievances are fundamental personal rights of
the people recognized and guaranteed by the constitutions of democratic
countries" and that the city or town mayors are not conferred "the power
to refuse to grant the permit, but only the discretion, in issuing the
permit, to determine or specify the streets or public places where the
parade or procession may pass or the meeting may be held."
- The burden to show the existence of grave and imminent danger that
would justify adverse action on the application lies on the mayor as
the licensing authority. There must be objective and convincing, not
subjective or conjectural, proof of the existence of such clear and
present danger.

FACTS:

This Court, in this case of first impression, at least as to some aspects, is called
upon to delineate the boundaries of the protected area of the cognate rights to
free speech and peaceable assembly, against an alleged intrusion by respondent
Mayor Ramon Bagatsing.

Petitioner retired Justice JBL Reyes sought a permit from the City of Manila to
hold peaceful march and rally , 2pm-5pm, from Luneta to the gates of US
Embassy. Once there, a short program would be held.

It was stated that after the delivery of two brief speeches, a petition based on the
resolution adopted on the last day by the International Conference for General
Disarmament, World Peace and the Removal of All Foreign Military Bases held in
Manila, would be presented to a representative of the Embassy or any of its
personnel who may be there so that it may be delivered to the United States
Ambassador. The march would be attended by the local and foreign participants
of such conference. There was likewise an assurance in the petition that in the
exercise of the constitutional rights to free speech and assembly, all the
necessary steps would be taken by it "to ensure a peaceful march and rally."

October 19, the permit was denied, and petitioner was unaware of such fact as
the denial was sent by ordinary mail.

Reason of denial: To be more specific, reference was made to "persistent

intelligence reports affirm[ing] the plans of subversive/criminal elements to
infiltrate and/or disrupt any assembly or congregations where a large number of
people is expected to attend." Respondent Mayor suggested, however, in
accordance with the recommendation of the police authorities, that "a permit may
be issued for the rally if it is to be held at the Rizal Coliseum or any other
enclosed area where the safety of the participants themselves and the general
public may be ensured."

HELD

It is thus clear that the Court is called upon to protect the exercise of the
cognate rights to free speech and peaceful assembly, arising from the
denial of a permit. The Constitution is quite explicit: "No law shall be
passed abridging the freedom of speech, or of the press, or the right of the
people peaceably to assemble and petition the Government for redress of
grievances." Free speech, like free press, may be identified with the liberty
to discuss publicly and truthfully any matter of public concern without
censorship or punishment.

To paraphrase the opinion of Justice Rutledge, speaking for the majority of the
American Supreme Court in Thomas v. Collins, it was not by accident or
coincidence that the rights to freedom of speech and of the press were
coupled in a single guarantee with the rights of the people peaceably to
assemble and to petition the government for redress of grievances. All
these rights, while not identical, are inseparable. In every case, therefore,
where there is a limitation placed on the exercise of this right, the judiciary is
called upon to examine the effects of the challenged governmental actuation.
The sole justification for a limitation on the exercise of this right, so fundamental
to the maintenance of democratic institutions, is the danger, of a character both
grave and imminent, of a serious evil to public safety, public morals, public
health, or any other legitimate public interest.

It must always be remembered that this right likewise provides for a safety valve,
allowing parties the opportunity to give vent to their views, even if contrary to the
prevailing climate of opinion. For if the peaceful means of communication cannot
be availed of, resort to non-peaceful means may be the only alternative. Nor is
this the sole reason for the expression of dissent. It means more than just the
right to be heard of the person who feels aggrieved or who is dissatisfied with
things as they are. Its value may lie in the fact that there may be something worth
hearing from the dissenter. That is to ensure a true ferment of ideas.

There can be no legal objection, absent the existence of a clear and present
danger of a substantive evil, on the choice of Luneta as the place where the
peace rally would start. The Philippines is committed to the view expressed in the
plurality opinion, of 1939 vintage, of Justice Roberts in Hague v. CIO: "Whenever
the title of streets and parks may rest, they have immemorially been held in trust
for the use of the public and, time out of mind, have been used for purposes of
assembly, communicating thoughts between citizens, and discussing public
questions. Such use of the streets and public places has, from ancient times,
been a part of the privileges, immunities, rights, and liberties of citizens. Xxx it is
not absolute, but relative, and must be exercised in subordination to the
general comfort and convenience, and in consonance with peace and good
order; but it must not, in the guise of regulation, be abridged or denied."

This Court issued the minute resolution granting the mandatory injunction
allowing the proposed march and rally scheduled for the next day. That
conclusion was inevitable in the absence of a clear and present danger of a
substantive evil to a legitimate public interest. There was no justification
then to deny the exercise of the constitutional rights of free speech and
peaceable assembly. These rights are assured by our Constitution and the
Universal Declaration of Human Rights. The participants to such assembly,
composed primarily of those in attendance at the International Conference
for General Disarmament, World Peace and the Removal of All Foreign
Military Bases would start from the Luneta, proceeding through Roxas
Boulevard to the gates of the United States Embassy located at the same
street. To repeat, it is settled law that as to public places, especially so as
to parks and streets, there is freedom of access. Nor is their use dependent
on who is the applicant for the permit, whether an individual or a group. If it were,
then the freedom of access becomes discriminatory access, giving rise to an
equal protection question.

The principle under American doctrines was given utterance by Chief Justice
Hughes in these words: "The question, if the rights of free speech and peaceable
assembly are to be preserved, is not as to the auspices under which the meeting
is held but as to its purpose; not as to the relations of the speakers, but whether
their utterances transcend the bounds of the freedom of speech which the
Constitution protects."

The mere assertion that subversives may infiltrate the ranks of the demonstrators
does not suffice.

It was made clear by petitioner, through counsel, that no act offensive to

the dignity of the United States Mission in the Philippines would take place
and that, as mentioned at the outset of this opinion, "all the necessary
steps would be taken by it `to ensure a peaceful march and rally.'"

If he is of the view that there is such an imminent and grave danger of a

substantive evil, the applicants must be heard on the matter. Thereafter, his
decision, whether favorable or adverse, must be transmitted to them at the
earliest opportunity. Thus if so minded, they can have recourse to the
proper judicial authority. Free speech and peaceable assembly, along with
the other intellectual freedoms, are highly ranked in our scheme of
constitutional values.
 LEO PITA VS COURT OF APPEALS, RAMON BAGATSING
GR NO. 80806, OCTOBER 5, 1989

DOCTRINES:

- Apparently, the courts have assumed that "obscenity" is not included in the
guaranty of free speech, an assumption that, as we averred, has allowed a
climate of opinions among magistrates predicated upon arbitrary, if vague
theories of what is acceptable to society. And "[t]here is little likelihood,"
says Tribe, "that this development has reached a state of rest, or that it will
ever do so until the Court recognizes that obscene speech is speech
nonetheless, although it is subject — as in all speech — to regulation in
the interests of [society as a whole] — but not in the interest of a uniform
vision of how human sexuality should be regarded and portrayed."
- As so strongly stressed in Bagatsing, a case involving the delivery of a
political speech, the presumption is that the speech may validly be said.
The burden is on the State to demonstrate the existence of a danger,
a danger that must not only be (1) clear but also, (2) present, to justify
State action to stop the speech. Meanwhile, the Government must
allow it (the speech). It has no choice. However, if it acts
notwithstanding that (absence of evidence of a clear and present danger),
it must come to terms with, and be held accountable for, due process. The
Court is not convinced that the private respondents have shown the
required proof to justify a ban and to warrant confiscation of the
literature for which mandatory injunction had been sought below.
First of all, they were not possessed of a lawful court order: (1)
finding the said materials to be pornography, and (2) authorizing
them to carry out a search and seizure, by way of a search warrant.

FACTS:

Petitioner, publisher of Pinoy Playboy, mens magazine, seeks to review

decision;he invokes the guaranty againt unreasonable searches and seizures,
and deprivation of due process.

Ramon Bagatsing, Mayor of City of Manila, in pursuance of Anti-Smut

Campaign, seized and confiscated from dealers, distributors, newsstand owners
and peddlers along Manila sidewalks, magazines, publications and other reading
materials believed to be obscene, pornographic and indecent and later burned
the seized materials in public at the University belt along C.M. Recto Avenue,
Manila, in the presence of Mayor Bagatsing and several officers and members of
various student organizations. Among the publications seized, and later burned, was
"Pinoy Playboy" magazines published and co-edited by plaintiff Leo Pita.
Plaintiff Leo Pita filed a case of injunction seeking to enjoin and or restrain said
defendants and their agents from confiscating plaintiffs magazines or from otherwise
preventing the sale or circulation thereof claiming that the magazine is a decent,
artistic and educational magazine which is not per se obscene, and that the
publication is protected by the Constitutional guarantees of freedom of speech and
of the press.

In Mayor’s answer, claimed that the said materials were voluntarily surrendered by
the vendors to the police authorities.

HELD

In People VS Kottinger, “the Court laid down the test, in determining the existence
of obscenity, as follows: "whether the tendency of the matter charged as obscene, is
to deprave or corrupt those whose minds are open to such immoral inuences and
into whose hands a publication or other article charged as being obscene may fall."
"Another test," so Kottinger further declares, "is that which shocks the ordinary and
common sense of men as an indecency."”

For obvious reasons, smut is not smut simply because one insists it is smut. So
is it equally evident that individual tastes develop, adapt to wide-ranging
influences, and keep in step with the rapid advance of civilization. What shocked
our forebears, say, five decades ago, is not necessarily repulsive to the present
generation. James Joyce and D.H. Lawrence were censored in the thirties yet
their works are considered important literature today. Goya's La Maja desnuda
was once banned from public exhibition but now adorns the world's most
prestigious museums.

But neither should we say that "obscenity" is a bare (no pun intended) matter of
opinion. As we said earlier, it is the divergent perceptions of men and women that
have probably compounded the problem rather than resolved it.

Undoubtedly, "immoral" lore or literature comes within the ambit of free

expression, although not its protection. In free expression cases, this Court has
consistently been on the side of the exercise of the right, barring a "clear and
present danger" that would warrant State interference and action. But, so we
asserted in Reyes v. Bagatsing, "the burden to show the existence of grave
and imminent danger that would justify adverse action . . . lies on the . . .
authorit[ies]."
"There must be objective and convincing, not subjective or conjectural, proof of
the existence of such clear and present danger, ""It is essential for the validity
of . . . previous restraint or censorship that the . . . authority does not rely solely
on his own appraisal of what the public welfare, peace or safety may require."
"To justify such a limitation, there must be proof of such weight and sufficiency
to satisfy the clear and present danger test."

(see doctrine above)

As to the search issue - It is basic that searches and seizures may be done
only through a judicial warrant, otherwise, they become unreasonable and
subject to challenge.

We reject outright the argument that "[t]here is no constitutional nor legal

provision which would free the accused of all criminal responsibility because
there had been no warrant," and that "violation of penal law [must] be punished."
For starters, there is no "accused" here to speak of, who ought to be "punished".

Second, to say that the respondent Mayor could have validly ordered the raid (as
a result of an anti-smut campaign) without a lawful search warrant because, in
his opinion, "violation of penal laws" has been committed, is to make the
respondent Mayor judge, jury, and executioner rolled into one. And precisely, this
is the very complaint of the petitioner.
 SOCIAL WEATHER STATIONS VS COMMISSION ON ELECTIONS
GR NO. 147571, MAY 5, 2001

FACTS:

Petitioner SWS is a private non stock social research institution conducting

surveys in various fields, economics politics demography and social
development. On the other hand, petitioner Kamahalan Publishing Corporation
published Manila Standard, newspaper of GC, features news including election
surveys.

Petitioners brought an action to enjoin the COMELEC from enforcing Fair

Election Act, “Surveys affecting national candidates shall not be published 􀀸fteen
(15) days before an election and surveys affecting local candidates shall not be
published seven (7) days before an election.”

Petitioner SWS states that it wishes to conduct an election survey throughout

the period of the elections both at the national and local levels and release to the
media the results of such survey as well as publish them directly. Petitioner
Kamahalan Publishing Corporation, on the other hand, states that it intends to
publish election survey results up to the last day of the elections.

Petitioners argue that the restriction on publication such constituted a restraint

on the exercise of speech without any clear and present danger to justify
such restraint.

Respondent Commission on Elections justifies the restrictions in §5.4 of R.A.

No. 9006 as necessary to prevent the manipulation and corruption of the
electoral process by unscrupulous and erroneous surveys just before the
election. The impairment of freedom of expression is minimal, the restriction lasts
only 15 days and 7 days.

Indeed, "any system of prior restraints of expression comes to this Court bearing
a heavy presumption against its constitutional validity. . . . The Government 'thus
carries a heavy burden of showing justification for the enforcement of such
restraint.'" There is thus a reversal of the normal presumption of validity that
inheres in every legislation.

Instead, MR. JUSTICE KAPUNAN (dissenting) purports to engage in a form of

balancing by "weighing and balancing the circumstances to determine whether
public interest [in free, orderly, honest, peaceful and credible elections] is served
by the regulation of the free enjoyment of the rights" (page 7). After canvassing
the reasons for the prohibition, i.e., to prevent last-minute pressure on voters,
the creation of bandwagon effect to favor candidates, misinformation, the
"junking" of weak and "losing" candidates by their parties, and the form of
election cheating called "dagdag-bawas" and invoking the State's power to
supervise media of information during the election period (pages 11- 16),
the dissenting opinion simply concludes:

“Viewed in the light of the legitimate and significant objectives of Section 5.4, it
may be seen that its limiting impact on the rights of free speech and of the press
is not unduly repressive or unreasonable. Indeed, it is a mere restriction, not an
absolute prohibition, on the publication of election surveys. It is limited in
duration; it applies only during the period when the voters are presumably
contemplating whom they should elect and when they are most susceptible to
such unwarranted persuasion. These surveys may be published thereafter.”

OBRIEN TEST - under this test, even if a law furthers an important or substantial
governmental interest, it should be invalidated if such governmental interest is
"not unrelated to the suppression of free expression." Moreover, even if the
purpose is unrelated to the suppression of free speech, the law should
nevertheless be invalidated if the restriction on freedom of expression is greater
than is necessary to achieve the governmental purpose in question.

In effect, §5.4 shows a bias for a particular subject matter, if not viewpoint,
by preferring personal opinion to statistical results. The constitutional
guarantee of freedom of expression means that "the government has no
power to restrict expression because of its message, its ideas, its subject
matter, or its content.

Thus, contrary to the claim of the Solicitor General, the prohibition

imposed by §5.4 cannot be justified on the ground that it is only for a
limited period and is only incidental. The prohibition may be for a limited
time, but the curtailment of the right of expression is direct, absolute, and
substantial. It constitutes a total suppression of a category of speech and
is not made less so because it is only for a period of fifteen (15) days
immediately before a national election and seven (7) days immediately
before a local election.

Second. Even if the governmental interest sought to be promoted is unrelated to

the suppression of speech and the resulting restriction of free expression is only
incidental, §5.4 nonetheless fails to meet criterion [4] of the O'Brien test, namely,
that the restriction be not greater than is necessary to further the governmental
interest.
Praiseworthy as these aims of the regulation might be, they cannot be attained at
the sacrifice of the fundamental right of expression, when such aim can be more
narrowly pursued by punishing unlawful act rather than speech because of
apprehension that such speech creates the danger of such evils.

To summarize then, we hold that §5.4 is invalid because (1) it imposes a

prior
restraint on the freedom of expression, (2) it is a direct and total
suppression of a category of expression even though such suppression is
only for a limited period, and (3) the governmental interest sought to be
promoted can be achieved by means other than the suppression of
freedom of expression.

ASSEMBLY AND PETITION

1. PRIMICIAS VS FUGOSO
2. MALABANAN VS RAMENTO
3. DELA CRUZ VS CA
4. PBM EMPLOYEES VS PBM BLOOMINGN MILLS
5. BAYAN VS ERMITA

CIPRIANO PRIMICIAS VS VALERIANO FUGOSO

GR NO L-1800. JANUARY 27, 1948

DOCTRINES

- The right to freedom of speech, and to peacefully assemble and petition

the government for redress of grievances, are fundamental personal rights
of the people recognized and guaranteed by the constitutions of
democratic countries. But it is a settled principle growing out of the nature
of well-ordered civil societies that the exercise of those rights is not
absolute for it may be so regulated that it shall not be injurious to the equal
enjoyment of others having equal rights, nor injurious to the rights of the
community or society. The power to regulate the exercise of such and
other constitutional rights is termed the sovereign "police power," which is
the power to prescribe regulations, to promote the health, morals, peace,
education, good order or safety, and general welfare of the people.
- (1) the Mayor of the City of Manila is vested with unregulated discretion to
grant or refuse to grant permit for the holding of a lawful assembly or
meeting, parade, or procession in the streets and other public places of the
City of Manila; and the other is that the applicant has the right to a permit
which shall be granted by the Mayor, subject only to the latter's
 reasonable discretion to determine or specify the streets or public
places to be used for the purpose, with a view to prevent confusion
by overlapping, to secure convenient use of the streets and public
places by others, and to provide adequate and proper policing to
minimize the risk of disorder.
- Said provision does not confer upon the Mayor the power to refuse to grant
the permit, but only the discretion, in issuing the permit, to determine
or specify the streets or public places where the parade or
procession may pass or the meeting may be held. The ordinance
cannot be construed as conferring upon the Mayor power to grant or
refuse to grant the permit, which would be tantamount to authorizing him to
prohibit the use of the streets and other public places for holding of
meetings, parades or processions, because such a construction would
make the ordinance invalid and void or violative of the constitutional
limitations.

FACTS:

This is an action of mandamus instituted by the petitioner Cipriano Primicias, a

campaign manager of the Coalesced Minority Parties against Valeriano Fugoso,
as Mayor of the City of Manila, to compel the latter to issue a permit for the
holding of a public meeting at Plaza Miranda on Sunday afternoon, November
16, 1947, for the purpose of petitioning the government for redress to grievances
on the ground that the respondent refused to grant such permit. Due to the
urgency of the case, this Court, after mature deliberation, issued a writ of
mandamus, as prayed for in the petition on November 15, 1947, without
prejudice to writing later an extended and reasoned decision.

The right to freedom of speech, and to peacefully assemble and petition the
government for redress of grievances, are fundamental personal rights of the
people recognized and guaranteed by the constitutions of democratic countries.
But it is a settled principle growing out of the nature of well-ordered civil societies
that the exercise of those rights is not absolute for it may be so regulated that it
shall not be injurious to the equal enjoyment of others having equal rights, nor
injurious to the rights of the community or society.

(see doctrine above)

Justice Hughes, “a statute requiring persons using the public streets for a parade
or procession to procure a special license therefor from the local authorities is not
an unconstitutional abridgment of the rights of assembly or of freedom of speech
and press, where, as the statute is construed by the state courts, the licensing
authorities are strictly limited, in the issuance of licenses, to a consideration of the
time, place, and manner of the parade or procession, with a view to conserving
the public convenience and of affording an opportunity to provide proper policing,
and are not invested with arbitrary discretion to issue or refuse license, . ”

Under our democratic system of government no such unlimited power may be

validly granted to any officer of the government, except perhaps in cases of
national emergency.

RESPONDENT CONTENTION - The reason alleged by the respondent in his

defense for refusing the permit is, "that there is a reasonable ground to believe,
basing upon previous utterances and upon the fact that passions, specially on
the part of the losing groups, remains bitter and high, that similar speeches will
be delivered tending to undermine the faith and confidence of the people in their
government, and in the duly constituted authorities, which might threaten
breaches of the peace and a disruption of public order.”

"Fear of serious injury cannot alone justify suppression of free speech and
assembly. Men feared witches and burned women. It is the function of speech to
free men from the bondage of irrational fears. To justify suppression of free
speech there must be reasonable ground to fear that serious evil will result if free
speech is practiced. There must be reasonable ground to believe that the danger
apprehended is imminent. There must be reasonable ground to believe that the
evil to be prevented is a serious one . . . "Those who won our independence by
revolution were not cowards.

They did not fear political change. They did not exalt order at the cost of liberty. .
. . "Moreover, even imminent danger cannot justify resort to prohibition of these
functions essential effective democracy, unless the evil apprehended is relatively
serious. Prohibition of free speech and assembly is a measure so stringent that it
would be inappropriate as the means for averting a relatively trivial harm to a
society. . . .

The fact that speech is likely to result in some violence or in destruction of

property is not enough to justify its suppression. There must be the
probability of serious injury to the state. Among freemen, the deterrents
ordinarily to be applied to prevent crimes are education and punishment
for violations of the law, not abridgment of the rights of free speech and
assembly." Whitney vs. California, U. S. Sup. Ct. Rep., 71 Law., ed., pp.
1106- 1107.)
In view of all the foregoing, the petition for mandamus is granted and, there
appearing no reasonable objection to the use of the Plaza Miranda, Quiapo,
for the meeting applied for, the respondent is ordered to issue the
corresponding permit, as requested.
 CRISPIN MALABANAN VS HON. ANASTACIO RAMENTO
GRNO. NO. 62270. MAY 21, 1984

DOCTRINES:
- InReyes vs Bagatsing, “The invocation of the right to freedom of peaceable
assembly carries with it the implication that the right to free speech has
likewise been disregarded. Both are embraced in the concept of freedom
of expression, which is identified with the liberty to discuss publicly and
truthfully, any, matter of public interest without censorship or punishment
and which "is not to be limited, much less denied, except on a showing . .
. of a clear and present danger of a substantive evil that the state has
a right to prevent."
- Student Assembly in the school premises does not present a clear
and present danger of public disorder - They take into account the
excitement of the occasion, the propensity of speakers to exaggerate, the
exhuberance of youth. They may give the speakers the benefit of their
applause, but with the activity taking place in the school premises and
during the day time, no clear and present danger of public disorder is
discernible. This is without prejudice disorder to the taking of disciplinary
action for conduct, which, to borrow from Tinker, "materially disrupts
classwork or involves substantial disorder or invasion of the rights of
others.”
- Even then a one-year period of suspension is much too severe. While the
discretion of both respondent University and respondent Ramento is
recognized, the rule of reason, the dictate of fairness calls for a much
lesser penalty. If the concept of proportionality between the offense
committed and the sanction imposed is not followed, an element of
arbitrariness intrudes.
- The rights to peaceable assembly and free speech are guaranteed to
students of educational institutions. Necessarily, their exercise to
discuss matters affecting their welfare or involving public interest is not to
be subjected to previous restraint or subsequent punishment unless there
be a showing of a clear and present danger to a substantive evil that the
state has a right to prevent.
- If the assembly is to be held in school premises, permit must be
sought from the school authorities, who are devoid of the power to
deny such request arbitrarily or unreasonably. In granting such
permit, there may be conditions as to the time and place of the
assembly to avoid disruption of classes or stoppage of work of the
non-academic personnel. Even if, however, there be violations of its
terms, the penalty incurred should not be disproportionate to the
offense.
FACTS:

Petitioners were officers of the Supreme Student Council of respondent

University. They sought a permit granted by the school from 8:00-12nn, August
27, 1982.
They held their general assembly in Veterinary and Medicine And Animal
Science basketball court, the place indicated in the permit not in the court but in
the second floor lobby.
They manifested In vehement and vigorous language their opposition to the
proposed merger of the Institute of Animal Science with the Institute of
Agriculture. At 10:30 A.M., the same day, they marched toward the Life Science
Building and continued their rally. It was outside the area covered by their permit.
They continued their demonstration, giving utterance to language severely critical
of the University authorities and using megaphones in the process. There was,
as a result, disturbance of the classes being held. Also, the non-academic
employees, within hearing distance, stopped their work because of the noise
created.

September 9, 1982, they were informed that they were under preventive
suspension for the illegal assembly.

Respondent Ramento, Director of NCR, said that the petitioners violated the
permit granted resulting in the disturbance of classes and oral defamation. The
penalty was one year suspension. Hence this petition.

HELD:

This Court accordingly rules that respect for the constitutional rights of
peaceable assembly and free speech calls for the setting aside of the
decision of respondent Ramento, the penalty imposed being unduly
severe. Suspending them for one year is out of proportion to their misdeed.

(see doctrine Reyes vs Bagatsing)

HOWEVER, the situation here is different. The assembly was to be held not in a
public place but in private premises, property of respondent University. There is
in the Reyes opinion as part of the summary this relevant excerpt: "The
applicants for a permit to hold an assembly should inform the licensing authority
of the date, the public place where and the time when it will take place. If it were
a private place, only the consent of the owner or the one entitled to its legal
possession is required."
Fortas opinion said, “xxxxxxxxxxxxxx . . But conduct by the student, in class or
out of it, which for any reason — whether it stems from time, place, or type of
behavior — materially disrupts classwork or involves substantial disorder or
invasion of the rights of others is, of course, not immunized by the constitutional
guarantee of freedom of speech."”

As tested by such a standard, what is the verdict on the complaint of

petitioners that there was a disregard of their constitutional rights to
peaceable assembly and free speech. It must be in their favor, but subject
to qualification, in view of their continuing their demonstration in a place
other than that specified in the permit for a longer period and their making
use of megaphones therein, resulting in the disruption of classes and the
stoppage of work by the non-academic personnel in the vicinity of such
assembly.

ADMITTEDLY, there was a violation of the terms of the permit. They rallied at the
second floor lobby, until 5:30 pm.

Private respondents could thus, take disciplinary action. On those facts, however,
an admonition, even a censure — certainly not a suspension — could be the
appropriate penalty. Private respondents could and did take umbrage at the fact
that in view of such infraction — considering the places where and the time when
the demonstration took place — there was a disruption of the classes and
stoppage of work of the non-academic personnel. They would not be unjustified
then if they did take a much more serious view of the matter. (see doctrine
above re:one year suspension)

Moreover, there was, and very likely there will continue to be in the future,
militancy and assertiveness of students on issues that they consider of
great importance, whether concerning their welfare or the general public.
That they have a right to do as citizens entitled to all the protection in the
Bill of Rights.

The rights to peaceable assembly and free speech are guaranteed students
of educational institutions. Necessarily, their exercise to discuss matters
affecting their welfare or involving public interest is not to be subjected to
previous restraint or subsequent punishment unless there be a showing of
a clear and present danger to a substantive evil that the state has a right to
present.
In granting such permit, there may be conditions as to the time and place of the
assembly to avoid disruption of classes or stoppage of work of the non-academic
personnel. Even if, however, there be violations of its terms, the penalty incurred
should not be disproportionate to the offense.
 LUZVIMINDA DELA CRUZ VS COURT OF APPEALS
GR NO. 126183, MARCH 25, 1999

DOCTRINES:
- The teachers were penalized not because they exercised their right to
peaceably assemble but because of the manner by which such right was
exercised, i.e., going on unauthorized and unilateral absences thus
disrupting classes in various schools in Metro Manila which produced
adverse effects upon the students for whose education the teachers were
responsible.
- RIGHT OF PUBLIC SCHOOL TEACHERS TO PEACEABLY ASSEMBLE
AND PETITION THE GOVERNMENT FOR REDRESS OF GRIEVANCES,
NOT EXERCISED WITHIN REASONABLE LIMITS WHEN THEY
STAGED MASS PROTESTS ON REGULAR SCHOOL DAYS

FACTS:

Petitioners are public teachers from various schools in MM who were

simultaneously charged, preventively suspended by then Sec Carino. According
to the report, “based on the report submitted by their respective school principals
wherein it was alleged that the above-named teachers participated in the mass
action/illegal strike on Sept. 19-21, 1990 and subsequently defied the return-to-work
order dated September 17, 1990 issued by this Office, which acts constitute grave
misconduct, gross neglect of duty, xxxxx”

Appellate court found that petitioners are guilty of conduct prejudicial to the
best interest of the service; that petitioner’s perceived grievances were no
excuse for them not to conduct classes and defy the return-to-work order issued
by their superiors.

Petitioner contention – CA erred in affirming the CSC when their only offense was
to exercise their constitutional right to peaceably assemble and petition the
government for redress of their grievances. Moreover petitioners insist that the
mass actions of September/October 1990 were not "strikes" as there was no
actual disruption of classes.

In consolidated cases of Manila Public School Teachers and Alliance of

Concerned Teachers vs Hon. Isidro Carino, “that the mass actions of
September/October 1990 staged by Metro Manila public school teachers "amounted
to a strike in every sense of the term, constituting as they did, a concerted and
unauthorized stoppage of or absence from work which it was said teachers' sworn
duty to perform, carried out for essentiall economic reasons — to protest and
pressure the Government to correct what, among other grievances, the strikers
perceived to be the unjust or prejudicial implementation of the salary standardization
law insofar as they were concerned, the non-payment or delay in payment of various
fringe benefits and allowances to which they were entitled, and the imposition of
additional teaching loads and longer teaching hours.”

HELD:

But the public school teachers in the case of the 1990 mass actions did not
exercise their constitutional rights within reasonable limits. On the contrary,
they committed acts prejudicial to the best interest of the service by staging
the mass protests on regular school days, abandoning their classes and
refusing to go back even after they had been ordered to do so. Had the
teachers availed of their free time — recess, after classes, weekends or
holidays — to dramatize their grievances and to dialogue with the proper
authorities within the bounds of law, no one — not the DECS, the CSC or even
the Supreme Court — could have held them liable for their participation in the
mass actions.

We again stressed that the teachers were penalized not because they
exercised their right to peaceably assemble but because of the manner by
which such right was exercised.

Considering the foregoing, we find that respondent Court of Appeals did not err in
sustaining the CSC resolutions finding petitioners guilty of conduct prejudicial to
the best interest of the service.
 PHIL. BLOOMING MILLS EMPLOYEES ORGANIZATION VS PHIL.
BLOOMING MILLS CO.
GR NO. L-31195, JUNE 5, 1973

FACTS:

Petitioner Phil. Blooming Mills Employees Organization is a legitimate labor union

of employees of PH Blooming Mills Co.

Petitioners decided to stage a mass demonstration at Malacanang on March 4,

1969 in protest against abuses of the Pasig police, informed the respondent
company of their proposed demonstration, to be participated by the first shift and
those working in regular shifts.

That a meeting was called by the Company at the canteen for the union to
confirm or deny the projected mass demonstration. Thru Benjamin Pagcu, they
confirmed the planned mass demonstration and said that it cannot be cancelled;
that it has nothing to do with the company because the union has no quarrel with
the Management.

That Management, thru Atty. C.S. de Leon, Company personnel manager,

informed PBMEO that the demonstration is an inalienable right of the union
guaranteed by the Constitution but emphasized, however, that any demonstration
for that matter should not unduly prejudice the normal operation of the Company.

Informed that those without previous leave of absences provided by the company
who shall fail to report for work shall be dismissed because it is a violation of
existing CBA and would be an illegal strike.

Company reiterated and appealed to the PBMEO representatives that while all
workers may join the Malacanang demonstration, the workers for the first and
regular shift of March 4, 1969 should be excused from joining the
demonstration and should report for work; and thus utilize the workers in the 2nd
and 3rd shifts in order not to violate the provisions of the CBA, particularly Article
XXIV: 'NO LOCKOUT — NO STRIKE'.

Because the petitioners and their members numbering about 400 proceeded with
the demonstration despite the pleas of the respondent Company that the first
shift workers should not be required to participate in the demonstration and that
the workers in the second and third shifts should be utilized for the demonstration
from 6 A.M. to 2 P.M. on M[arch 4, 1969, respondent Company filed on March
4, 1969, with the respondent Court, a charge against petitioners and other
employees who composed the first shift, charging them with a “no strike and no
lockout”.

Petitioners contention – said that they did not violate the existing CBA because
they gave the respondent company prior notice of the mass demonstration; that
there was a valid exercise of freedom of speech against the alleged abuses of
some Pasig policemen.

HELD:

The freedoms of expression and of assembly as well as the right to petition are
included among the immunities reserved by the sovereign people, in the
rhetorical aphorism of Justice Holmes, to protect the ideas that we abhor or hate
more than the ideas we cherish; or as Socrates insinuated, not only to protect the
minority who want to talk, but also to benefit the majority who refuse to listen.
And as Justice Douglas cogently stresses it, the liberties of one are the liberties
of all; and the liberties of one are not safe unless the liberties of all are protected.

(4) The rights of free expression, free assembly and petition, are not only civil
rights but also political rights essential to man's enjoyment of his life, to his
happiness and to his full and complete fulfillment. Thru these freedoms the
citizens can participate not merely in the periodic establishment of the
government through their suffrage but also in the administration of public affairs
as well as in the discipline of abusive public officers. The citizen is accorded
these rights so that he can appeal to the appropriate governmental officers or
agencies for redress and protection as well as for the imposition of the lawful
sanctions on erring public officers and employees.

(5) While the Bill of Rights also protects property rights, the primacy of human
rights over property rights is recognized. HUMAN RIGHTS ARE
IMPRESCRIPTIBLE.

On the other hand, a constitutional or valid infringement of human rights

requires a more stringent criterion, namely existence of a grave and
immediate danger of a substantive evil which the State has the right to
prevent.

The demonstration held by petitioners on March 4, 1969 before Malacanang

was against alleged abuses of some Pasig policemen, not against their
employer, herein private respondent firm, said demonstration was purely
and completely an exercise of their freedom of expression in general and of
their right of assembly and of petition for redress of grievances in
particular before the appropriate governmental agency, the Chief
Executive, against the police officers of the municipality of Pasig. They
exercised their civil and political rights for their mutual aid and protection
from what they believe were police excesses. As a matter of fact, it was the
duty of herein private respondent firm to protect herein petitioner Union
and its members from the harassment of local police officers. It was to the
interest of herein private respondent firm to rally to the defense of, and to
take up the cudgels for, its employees, so that they can report to work free
from harassment, vexation or peril and as a consequence perform more
efficiently their respective tasks to enhance its productivity as well as
profits. Herein respondent employer did not even offer to intercede for its
employees with the local police.

In seeking sanctuary behind their freedom of expression as well as their right of

assembly and of petition against alleged persecution of local officialdom, the
employees and laborers of herein private respondent firm were fighting for their
very survival, utilizing only the weapons afforded them by the Constitution — the
untrammelled enjoyment of their basic human rights. The pretension of their
employer that it would suffer loss or damage by reason of the absence of its
employees from 6 o'clock in the morning to 2 o'clock in the afternoon, is a plea
for the preservation merely of their property rights. Such apprehended loss or
damage would not spell the difference between the life and death of the firm or
its owners or its management. The employees' pathetic situation was a stark
reality — abused, harassed and persecuted as they believed they were by the
peace officers of the municipality

To regard the demonstration against police officers, not against the

employer, as evidence of bad faith in collective bargaining and hence a
violation of the collective bargaining agreement and a cause for the
dismissal from employment of the demonstrating employees, stretches
unduly the compass of the collective bargaining agreement, is "a potent
means of inhibiting speech" and therefore inflicts a moral as well as mortal
wound on the constitutional guarantees of free expression, of peaceful
assembly and of petition.

This stand failed to appreciate the sine qua non of an effective demonstration
especially by a labor union, namely the complete unity of the Union members as
well as their total presence at the demonstration site in order to generate the
maximum sympathy for the validity of their cause but also immediate action on
the part of the corresponding government agencies with jurisdiction over the
issues they raised against the local police.

Circulation is one of the aspects of freedom of expression. If demonstrators are

reduced by one-third, then by that much the circulation of the issues raised
by the demonstration is diminished. The more the participants, the more
persons can be apprised of the purpose of the rally. Moreover, the absence
of one-third of their members will be regarded as a substantial indication of
disunity in their ranks which will enervate their position and abet continued
alleged police persecution.

As to the contention of the respondent in its loss for the day - It did not
present evidence as to whether it lost expected profits for failure to comply with
purchase orders on that day; or that penalties were exacted from it by customers
whose orders could not be filled that day of the demonstration; or that purchase
orders were cancelled by the customers by reason of its failure to deliver the
materials ordered; or that its own equipment or materials or products were
damaged due to absence of its workers on March 4, 1969.

(ANOTHER ISSUE RAISED)

However, a constitutional issue can be raised any time, even for the first time on
appeal, if it appears that the determination of the constitutional issue is
necessary to a decision of the case, the very lis mota of the case without the
resolution of which no final and complete determination of the dispute can be
made. It is thus seen that a procedural rule of Congress or of the Supreme Court
gives way to a constitutional right. In the instant case, the procedural rule of the
Court of Industrial Relations, a creature of Congress, must likewise yield to the
constitutional rights invoked by herein petitioners even before the institution of
the unfair labor practice charged against them and in their defense to the said
charge.

In the case at bar, enforcement of the basic human freedoms sheltered no less
by the organic law, is a most compelling reason to deny application of a Court of
Industrial Relations rule which impinges on such human rights.

It is an accepted principle that the Supreme Court has the inherent power to
"suspend its own rules or to except a particular case from its operation, whenever
the purposes of justice require.

If we can disregard our own rules when justice requires it, obedience to the
Constitution renders more imperative the suspension of a Court of
Industrial Relations rule that clashes with the human rights sanctioned and
shielded with resolute concern by the specific guarantees outlined in the
organic law. It should be stressed that the application in the instant case of
Section 15 of the Court of Industrial Relations rules relied upon by herein
respondent firm, is unreasonable and therefore such application becomes
unconstitutional as it subverts the human rights of petitioning labor union
and workers in the light of the peculiar facts and circumstances revealed
by the record.

Management has shown not only lack of good-will or good intention, but a
complete lack of sympathetic understanding of the plight of its laborers who claim
that they are being subjected to indignities by the local police. It was more
expedient for the firm to conserve its income or profits than to assist its
employees in their fight for their freedoms and security against alleged petty
tyrannies of local police officers. This is sheer opportunism. Such opportunism
and expediency resorted to by the respondent company assaulted the immunities
and welfare of its employees. It was pure and simple selfishness, if not greed.

Proper sanction – one day absence in work will be sanctioned to their

vacation leave or sick leave.
 BAYAN, KARAPATAN KILUSANG MAGBUBUKID NG PILIPINAS VS
EDUARDO ERMITA
GR NO. 169838, APRIL 25, 2006

FACTS

First petitioners, Bayan allege that they are citizens and taxpayers of the PH
and that their rights as organizations and individuals were violated when the rally
they participated in on October 6, 2005 was violently dispersed by policemen
implementing Batas Pambansa (B.P.) No. 880.

Second petitioners, Jess Del Prado, who allege that they were injured,
arrested and detained when a peaceful mass action they held on September 26,
2005 was preempted and violently dispersed by the police.

Third petitioners Kilusang Mayo Uno, allege that they conduct peaceful mass
actions and that their rights as organizations and those of their individual
members as citizens, specifically the right to peaceful assembly. While
conducting an assembly, they were blocked by police and forcibly dispersed
causing injuried to their members.

Petitioners contention - They argue that B.P. No. 880 requires a permit before
one can stage a public assembly regardless of the presence or absence of a
clear and present danger. It also curtails the choice of venue and is thus
repugnant to the freedom of expression clause as the time and place of a public
assembly form part of the message for which the expression is sought.
Furthermore, it is not content-neutral as it does not apply to mass actions in
support of the government.
First, allowing the Mayor to deny the permit on clear and convincing evidence of
a clear and present danger is too comprehensive. Second, the five-day
requirement to apply for a permit is too long as certain events require instant
public assembly, otherwise interest on the issue would possibly wane.

Respondents Exec Secretary Eduardo Ermita argues:

- Petitioners no legal standing
- B.P. No. 880 is content-neutral as seen from the text of the law. Section
5 requires the statement of the public assembly's time, place and manner
of conduct. It entails traffic rerouting to prevent grave public inconvenience
and serious or undue interference in the free flow of commerce and trade.
Furthermore, nothing in B.P. No. 880 authorizes the denial of a permit on
the basis of a rally's program content or the statements of the speakers
 therein, except under the constitutional precept of the "clear and present
danger test."

HELD:

The first point to mark is that the right to peaceably assemble and petition for
redress of grievances is, together with freedom of speech, of expression, and of
the press, a right that enjoys primacy in the realm of constitutional protection. For
these rights constitute the very basis of a functional democratic polity, without
which all the other rights would be meaningless and unprotected.

It is very clear, therefore, that B.P. No. 880 is not an absolute ban of public
assemblies but a restriction that simply regulates the time, place and manner of
the assemblies. This was adverted to in Osmeña v. Comelec, where the Court
referred to it as a "content-neutral" regulation of the time, place, and manner
of holding public assemblies.

A fair and impartial reading of B.P. No. 880 thus readily shows that it refers to all
kinds of public assemblies that would use public places. The reference to "lawful
cause" does not make it content-based because assemblies really have to be for
lawful causes, otherwise they would not be "peaceable" and entitled to
protection. Neither are the words "opinion," "protesting" and "influencing" in the
definition of public assembly content based, since they can refer to any subject.

The words "petitioning the government for redress of grievances" come from the
wording of the Constitution, so its use cannot be avoided. Finally, maximum
tolerance is for the protection and benefit of all rallyists and is independent of the
content of the expressions in the rally.

Furthermore, the permit can only be denied on the ground of clear and
present danger to public order, public safety, public convenience, public
morals or public health. This is a recognized exception to the exercise of the
right even under the Universal Declaration of Human Rights and the International
Covenant on Civil and Political Rights.

At any rate, the Court rules that in view of the maximum tolerance mandated by
B.P. No. 880, CPR serves no valid purpose if it means the same thing as
maximum tolerance and is illegal if it means something else. Accordingly, what is
to be followed is and should be that mandated by the law itself, namely,
maximum tolerance – the highest decree of restraint that the military police
and other peace keeping authorities shall observe during a public
assembly or in the dispersal of the same.

SEC. 9.Non-interference by law enforcement authorities. — Law enforcement

agencies shall not interfere with the holding of a public assembly. However, to
adequately ensure public safety, a law enforcement contingent under the command
of a responsible police officer may be detailed and stationed in a place at least one
hundred (100) meters away from the area of activity ready to maintain peace and
order at all times.

Furthermore, there is need to address the situation adverted to by petitioners

where mayors do not act on applications for a permit and when the police
demand a permit and the rallyists could not produce one, the rally is immediately
dispersed. In such a situation, as a necessary consequence and part of
maximum tolerance, rallyists who can show the police an application duly
filed on a given date can, after two days from said date, rally in accordance
with their application without the need to show a permit, the grant of the
permit being then presumed under the law, and it will be the burden of the
authorities to show that there has been a denial of the application, in which case
the rally may be peacefully dispersed following the procedure of maximum
tolerance prescribed by the law.

In sum, this Court reiterates its basic policy of upholding the fundamental rights
of our people, especially freedom of expression and freedom of assembly. In
several policy addresses, Chief Justice Artemio V. Panganiban has repeatedly
vowed to uphold the liberty of our people and to nurture their prosperity. He said
that "in cases involving liberty, the scales of justice should weigh heavily
against the government and in favor of the poor, the oppressed, the
marginalized, the dispossessed and the weak. Indeed, laws and actions
that restrict fundamental rights come to the courts with a heavy
presumption against their validity. These laws and actions are subjected to
heightened scrutiny."

Far from being insidious, "maximum tolerance" is for the benefit of rallyists, not
the government. The delegation to the mayors of the power to issue rally
"permits" is valid because it is subject to the constitutionally-sound "clear and
present danger" standard.

In this Decision, the Court goes even one step further in safeguarding
liberty by giving local governments a deadline of 30 days within which to
designate specific freedom parks as provided under B.P. No. 880. If, after
that period, no such parks are so identified in accordance with Section 15
of the law, all public parks and plazas of the municipality or city concerned
shall in effect be deemed freedom parks; no prior permit of whatever kind
shall be required to hold an assembly therein. The only requirement will be
written notices to the police and the mayor's office to allow proper
coordination and orderly activities.