Gk No 130230 Apr|| 1S 200S

ML1kCCLI1AN MANILA DLVLLCMLN1 AU1nCkI1 pet|t|oner vs DAN1L C GAkIN

respondent

u L C l S l C n
CPlCCnAZA8lC !

AL lssue ln Lhls case ls Lhe valldlLy of SecLlon 3(f) of 8epubllc AcL no 7924 creaLlng Lhe
MeLropollLan Manlla uevelopmenL AuLhorlLy (MMuA) whlch auLhorlzes lL Lo conflscaLe and
suspend or revoke drlver's llcenses ln Lhe enforcemenL of Lrafflc laws and regulaLlons

1he lssue arose from an lncldenL lnvolvlng Lhe respondenL uanLe C Carln a lawyer who was
lssued a Lrafflc vlolaLlon recelpL (1v8) and hls drlver's llcense conflscaLed for parklng lllegally
along Candara SLreeL 8lnondo Manlla on 03 AugusL 1993 1he followlng sLaLemenLs were
prlnLed on Lhe 1v8

?Cu A8L PL8L8? ul8LC1Lu 1C 8LC81 1C 1PL MMuA 18AlllC CL8A1lCnS CLn1L8 C81
A8LA MAnlLA Al1L8 48 PCu8S l8CM uA1L Cl A8LPLnSlCn lC8
ulSCSl1lCn/A8C8lA1L AC1lCn 1PL8LCn C8lMlnAL CASL SPALL 8L llLLu lC8 lAlLu8L
1C 8LuLLM LlCLnSL Al1L8 30 uA?S

vALlu AS 1LMC8A8? u8lvL8'S LlCLnSL lC8 SLvLn uA?S l8CM uA1L Cl A8LPLnSlCn1

ShorLly before Lhe explraLlon of Lhe 1v8's valldlLy Lhe respondenL addressed a leLLer2 Lo
Lhen MMuA Chalrman rospero CreLa requesLlng Lhe reLurn of hls drlver's llcense and
expresslng hls preference for hls case Lo be flled ln courL

8ecelvlng no lmmedlaLe reply Carln flled Lhe orlglnal complalnL3 wlLh appllcaLlon for
prellmlnary ln[uncLlon ln 8ranch 260 of Lhe 8eglonal 1rlal CourL (81C) of aranaque on 12
SepLember 1993 conLendlng LhaL ln Lhe absence of any lmplemenLlng rules and regulaLlons
Sec 3(f) of 8ep AcL no 7924 granLs Lhe MMuA unbrldled dlscreLlon Lo deprlve errlng
moLorlsLs of Lhelr llcenses preempLlng a [udlclal deLermlnaLlon of Lhe valldlLy of Lhe
deprlvaLlon Lhereby vlolaLlng Lhe due process clause of Lhe ConsLlLuLlon 1he respondenL
furLher conLended LhaL Lhe provlslon vlolaLes Lhe consLlLuLlonal prohlblLlon agalnsL undue
delegaLlon of leglslaLlve auLhorlLy allowlng as lL does Lhe MMuA Lo flx and lmpose
unspeclfled and Lherefore unllmlLed flnes and oLher penalLles on errlng moLorlsLs

ln supporL of hls appllcaLlon for a wrlL of prellmlnary ln[uncLlon Carln alleged LhaL he suffered
and conLlnues Lo suffer greaL and lrreparable damage because of Lhe deprlvaLlon of hls
llcense and LhaL absenL any lmplemenLlng rules from Lhe MeLro Manlla Councll Lhe 1v8 and
Lhe conflscaLlon of hls llcense have no legal basls

lor lLs parL Lhe MMuA represenLed by Lhe Cfflce of Lhe SollclLor Ceneral polnLed ouL LhaL
Lhe powers granLed Lo lL by Sec 3(f) of 8ep AcL no 7924 are llmlLed Lo Lhe flxlng collecLlon
and lmposlLlon of flnes and penalLles for Lrafflc vlolaLlons whlch powers are leglslaLlve and
execuLlve ln naLure Lhe [udlclary reLalns Lhe rlghL Lo deLermlne Lhe valldlLy of Lhe penalLy
lmposed lL furLher argued LhaL Lhe docLrlne of separaLlon of powers does noL preclude
admlxLure" of Lhe Lhree powers of governmenL ln admlnlsLraLlve agencles4

1he MMuA also refuLed Carln's allegaLlon LhaL Lhe MeLro Manlla Councll Lhe governlng
board and pollcy maklng body of Lhe peLlLloner has as yeL Lo formulaLe Lhe lmplemenLlng
rules for Sec 3(f) of 8ep AcL no 7924 and dlrecLed Lhe courL's aLLenLlon Lo MMuA
Memorandum Clrcular no 1193001 daLed 13 Aprll 1993 8espondenL Carln however
quesLloned Lhe valldlLy of MMuA Memorandum Clrcular no 1193001 as he clalms LhaL lL
was passed by Lhe MeLro Manlla Councll ln Lhe absence of a quorum

!udge Pelen 8auLlsLa8lcaforL lssued a Lemporary resLralnlng order on 26 SepLember 1993
exLendlng Lhe valldlLy of Lhe 1v8 as a Lemporary drlver's llcense for LwenLy more days A
prellmlnary mandaLory ln[uncLlon was granLed on 23 CcLober 1993 and Lhe MMuA was
dlrecLed Lo reLurn Lhe respondenL's drlver's llcense

Cn 14 AugusL 1997 Lhe Lrlal courL rendered Lhe assalled declslon3 ln favor of Lhe hereln
respondenL and held LhaL

a 1here was lndeed no quorum ln LhaL llrsL 8egular MeeLlng of Lhe MMuA Councll held
on March 23 1993 hence MMuA Memorandum Clrcular no 1193001 auLhorlzlng
conflscaLlon of drlver's llcenses upon lssuance of a 1v8 ls vold ab lnlLlo

b 1he summary conflscaLlon of a drlver's llcense wlLhouL flrsL glvlng Lhe drlver an
opporLunlLy Lo be heard deprlvlng hlm of a properLy rlghL (drlver's llcense) wlLhouL uuL
8CCLSS noL fllllng (slc) ln CourL Lhe complalnL of supposed Lrafflc lnfracLlon cannoL be
[usLlfled by any leglslaLlon (and ls) hence unconsLlLuLlonal

WPL8LlC8L Lhe Lemporary wrlL of prellmlnary ln[uncLlon ls hereby made permanenL Lh(e)
MMuA ls dlrecLed Lo reLurn Lo plalnLlff hls drlver's llcense Lh(e) MMuA ls llkewlse ordered Lo
deslsL from conflscaLlng drlver's llcense wlLhouL flrsL glvlng Lhe drlver Lhe opporLunlLy Lo be
heard ln an approprlaLe proceedlng

ln flllng Lhls peLlLlon6 Lhe MMuA relLeraLes and relnforces lLs argumenL ln Lhe courL below
and conLends LhaL a llcense Lo operaLe a moLor vehlcle ls nelLher a conLracL nor a properLy
rlghL buL ls a prlvllege sub[ecL Lo reasonable regulaLlon under Lhe pollce power ln Lhe lnLeresL
of Lhe publlc safeLy and welfare 1he peLlLloner furLher argues LhaL revocaLlon or suspenslon
of Lhls prlvllege does noL consLlLuLe a Laklng wlLhouL due process as long as Lhe llcensee ls
glven Lhe rlghL Lo appeal Lhe revocaLlon

1o buLLress lLs argumenL LhaL a llcensee may lndeed appeal Lhe Laklng and Lhe [udlclary
reLalns Lhe power Lo deLermlne Lhe valldlLy of Lhe conflscaLlon suspenslon or revocaLlon of
Lhe llcense Lhe peLlLloner polnLs ouL LhaL under Lhe Lerms of Lhe conflscaLlon Lhe llcensee
has Lhree opLlons

1 1o volunLarlly pay Lhe lmposable flne
2 1o proLesL Lhe apprehenslon by flllng a proLesL wlLh Lhe MMuA Ad[udlcaLlon CommlLLee
or 3 1o requesL Lhe referral of Lhe 1v8 Lo Lhe ubllc rosecuLor's Cfflce
1he MMuA llkewlse argues LhaL Memorandum Clrcular no 1193001 was valldly passed ln
Lhe presence of a quorum and LhaL Lhe lower courL's flndlng LhaL lL had noL was based on a
mlsapprehenslon of facLs" whlch Lhe peLlLloner would have us revlew Moreover lL asserLs
LhaL Lhough Lhe clrcular ls Lhe basls for Lhe lssuance of 1v8s Lhe basls for Lhe summary
conflscaLlon of llcenses ls Sec 3(f) of 8ep AcL no 7924 lLself and LhaL such power ls self
execuLory and does noL requlre Lhe lssuance of any lmplemenLlng regulaLlon or clrcular

Meanwhlle on 12 AugusL 2004 Lhe MMuA Lhrough lLs Chalrman 8ayanl lernando
lmplemenLed Memorandum Clrcular no 04 Serles of 2004 ouLllnlng Lhe procedures for Lhe
use of Lhe MeLropollLan 1rafflc 1lckeL (M11) scheme under Lhe clrcular errlng moLorlsLs are
lssued an M11 whlch can be pald aL any MeLrobank branch 1rafflc enforcers may no longer
conflscaLe drlvers' llcenses as a maLLer of course ln cases of Lrafflc vlolaLlons All moLorlsLs
wlLh unredeemed 1v8s were glven seven days from Lhe daLe of lmplemenLaLlon of Lhe new
sysLem Lo pay Lhelr flnes and redeem Lhelr llcense or vehlcle plaLes7

lL would seem Lherefore LhaL lnsofar as Lhe absence of a prlma facle case Lo en[oln Lhe
peLlLloner from conflscaLlng drlvers' llcenses ls concerned recenL evenLs have overLaken Lhe
CourL's need Lo declde Lhls case whlch has been rendered mooL and academlc by Lhe
lmplemenLaLlon of Memorandum Clrcular no 04 Serles of 2004

1he peLlLloner however ls noL precluded from relmplemenLlng Memorandum Clrcular no
1193001 or any oLher scheme for LhaL maLLer LhaL would enLall conflscaLlng drlvers'
llcenses lor Lhe proper lmplemenLaLlon Lherefore of Lhe peLlLloner's fuLure programs Lhls
CourL deems lL approprlaLe Lo make Lhe followlng observaLlons

1 A llcense Lo operaLe a moLor vehlcle ls a prlvllege LhaL Lhe sLaLe may wlLhhold ln Lhe
exerclse of lLs pollce power

1he peLlLloner correcLly polnLs ouL LhaL a llcense Lo operaLe a moLor vehlcle ls noL a properLy
rlghL buL a prlvllege granLed by Lhe sLaLe whlch may be suspended or revoked by Lhe sLaLe ln
Lhe exerclse of lLs pollce power ln Lhe lnLeresL of Lhe publlc safeLy and welfare sub[ecL Lo Lhe
procedural due process requlremenLs 1hls ls conslsLenL wlLh our rullngs ln edro v rovlnclal
8oard of 8lzal8 on Lhe llcense Lo operaLe a cockplL 1an v ulrecLor of loresLry9 and Cposa
v lacLoran10 on Llmber llcenslng agreemenLs and Surlgao LlecLrlc Co lnc v MunlclpallLy
of Surlgao11 on a leglslaLlve franchlse Lo operaLe an elecLrlc planL

eLlLloner clLes a long llsL of Amerlcan cases Lo prove Lhls polnL such as SLaLe ex 8el
Sulllvan12 whlch sLaLes ln parL LhaL Lhe leglslaLlve power Lo regulaLe Lravel over Lhe
hlghways and Lhoroughfares of Lhe sLaLe for Lhe general welfare ls exLenslve lL may be
exerclsed ln any reasonable manner Lo conserve Lhe safeLy of Lravelers and pedesLrlans
Slnce moLor vehlcles are lnsLrumenLs of poLenLlal danger Lhelr reglsLraLlon and Lhe llcenslng
of Lhelr operaLors have been requlred almosL from Lhelr flrsL appearance 1he rlghL Lo
operaLe Lhem ln publlc places ls noL a naLural and unresLralned rlghL buL a prlvllege sub[ecL Lo
reasonable regulaLlon under Lhe pollce power ln Lhe lnLeresL of Lhe publlc safeLy and
welfare 1he power Lo llcense lmporLs furLher power Lo wlLhhold or Lo revoke such llcense
upon noncompllance wlLh prescrlbed condlLlons"

Llkewlse Lhe peLlLloner quoLes Lhe ennsylvanla Supreme CourL ln CommonwealLh v
lunk13 Lo Lhe effecL LhaL AuLomoblles are vehlcles of greaL speed and power 1he use of
Lhem consLlLuLes an elemenL of danger Lo persons and properLy upon Lhe hlghways Carefully
operaLed an auLomoblle ls sLlll a dangerous lnsLrumenLallLy buL when operaLed by careless
or lncompeLenL persons lL becomes an englne of desLrucLlon 1he LeglslaLure ln Lhe exerclse
of Lhe pollce power of Lhe commonwealLh noL only may buL musL prescrlbe how and by
whom moLor vehlcles shall be operaLed on Lhe hlghways Cne of Lhe prlmary purposes of a
sysLem of general regulaLlon of Lhe sub[ecL maLLer as here by Lhe vehlcle Code ls Lo lnsure
Lhe compeLency of Lhe operaLor of moLor vehlcles Such a general law ls manlfesLly dlrecLed
Lo Lhe promoLlon of publlc safeLy and ls well wlLhln Lhe pollce power"

1he common Lhread runnlng Lhrough Lhe clLed cases ls LhaL lL ls Lhe leglslaLure ln Lhe exerclse
of pollce power whlch has Lhe power and responslblllLy Lo regulaLe how and by whom moLor
vehlcles may be operaLed on Lhe sLaLe hlghways

2 1he MMuA ls noL vesLed wlLh pollce power

ln MeLro Manlla uevelopmenL AuLhorlLy v 8elAlr vlllage AssoclaLlon lnc14 we
caLegorlcally sLaLed LhaL 8ep AcL no 7924 does noL granL Lhe MMuA wlLh pollce power leL
alone leglslaLlve power and LhaL all lLs funcLlons are admlnlsLraLlve ln naLure


1he sald case also lnvolved Lhe hereln peLlLloner MMuA whlch clalmed LhaL lL had Lhe
auLhorlLy Lo open a subdlvlslon sLreeL owned by Lhe 8elAlr vlllage AssoclaLlon lnc Lo publlc
Lrafflc because lL ls an agenL of Lhe sLaLe endowed wlLh pollce power ln Lhe dellvery of baslc
servlces ln MeLro Manlla lrom Lhls premlse Lhe MMuA argued LhaL Lhere was no need for
Lhe ClLy of MakaLl Lo enacL an ordlnance openlng nepLune SLreeL Lo Lhe publlc

1raclng Lhe leglslaLlve hlsLory of 8ep AcL no 7924 creaLlng Lhe MMuA we concluded LhaL
Lhe MMuA ls noL a local governmenL unlL or a publlc corporaLlon endowed wlLh leglslaLlve
power and unllke lLs predecessor Lhe MeLro Manlla Commlsslon lL has no power Lo enacL
ordlnances for Lhe welfare of Lhe communlLy 1hus ln Lhe absence of an ordlnance from Lhe
ClLy of MakaLl lLs own order Lo open Lhe sLreeL was lnvalld

We resLaLe here Lhe docLrlne ln Lhe sald declslon as lL applles Lo Lhe case aL bar pollce power
as an lnherenL aLLrlbuLe of soverelgnLy ls Lhe power vesLed by Lhe ConsLlLuLlon ln Lhe
leglslaLure Lo make ordaln and esLabllsh all manner of wholesome and reasonable laws
sLaLuLes and ordlnances elLher wlLh penalLles or wlLhouL noL repugnanL Lo Lhe ConsLlLuLlon
as Lhey shall [udge Lo be for Lhe good and welfare of Lhe commonwealLh and for Lhe sub[ecLs
of Lhe same

Pavlng been lodged prlmarlly ln Lhe naLlonal LeglslaLure lL cannoL be exerclsed by any group
or body of lndlvlduals noL possesslng leglslaLlve power 1he naLlonal LeglslaLure however
may delegaLe Lhls power Lo Lhe presldenL and admlnlsLraLlve boards as well as Lhe lawmaklng
bodles of munlclpal corporaLlons or local governmenL unlLs (LCus) Cnce delegaLed Lhe
agenLs can exerclse only such leglslaLlve powers as are conferred on Lhem by Lhe naLlonal
lawmaklng body

Cur Congress delegaLed pollce power Lo Lhe LCus ln Lhe Local CovernmenL Code of 199113
A local governmenL ls a pollLlcal subdlvlslon of a naLlon or sLaLe whlch ls consLlLuLed by law
and has subsLanLlal conLrol of local affalrs"16 Local governmenL unlLs are Lhe provlnces
clLles munlclpallLles and barangays whlch exerclse pollce power Lhrough Lhelr respecLlve
leglslaLlve bodles

MeLropollLan or MeLro Manlla ls a body composed of several local governmenL unlLs WlLh
Lhe passage of 8ep AcL no 7924 ln 1993 MeLropollLan Manlla was declared as a speclal
developmenL and admlnlsLraLlve reglon and Lhe admlnlsLraLlon of meLrowlde baslc
servlces affecLlng Lhe reglon placed under a developmenL auLhorlLy referred Lo as Lhe
MMuA 1hus

1he powers of Lhe MMuA are llmlLed Lo Lhe followlng acLs formulaLlon coordlnaLlon
regulaLlon lmplemenLaLlon preparaLlon managemenL monlLorlng seLLlng of pollcles
lnsLallaLlon of a sysLem and admlnlsLraLlon 1here ls no syllable ln 8 A no 7924 LhaL granLs
Lhe MMuA pollce power leL alone leglslaLlve power Lven Lhe MeLro Manlla Councll has noL
been delegaLed any leglslaLlve power unllke Lhe leglslaLlve bodles of Lhe local governmenL
unlLs Lhere ls no provlslon ln 8 A no 7924 LhaL empowers Lhe MMuA or lLs Councll Lo
enacL ordlnances approve resoluLlons and approprlaLe funds for Lhe general welfare of Lhe
lnhablLanLs of MeLro Manlla 1he MMuA ls as Lermed ln Lhe charLer lLself a developmenL
auLhorlLy lL ls an agency creaLed for Lhe purpose of laylng down pollcles and coordlnaLlng
wlLh Lhe varlous naLlonal governmenL agencles peoples organlzaLlons nongovernmenLal
organlzaLlons and Lhe prlvaLe secLor for Lhe efflclenL and expedlLlous dellvery of baslc servlces
ln Lhe vasL meLropollLan area All lLs funcLlons are admlnlsLraLlve ln naLure and Lhese are
acLually summed up ln Lhe charLer lLself vlz

Sec 2 CreaLlon of Lhe MeLropollLan Manlla uevelopmenL AuLhorlLy x x x

1he MMuA shall perform plannlng monlLorlng and coordlnaLlve funcLlons and ln Lhe process
exerclse regulaLory and supervlsory auLhorlLy over Lhe dellvery of meLrowlde servlces wlLhln
MeLro Manlla wlLhouL dlmlnuLlon of Lhe auLonomy of Lhe local governmenL unlLs concernlng
purely local maLLers"



Clearly Lhe MMuA ls noL a pollLlcal unlL of governmenL 1he power delegaLed Lo Lhe MMuA
ls LhaL glven Lo Lhe MeLro Manlla Councll Lo promulgaLe admlnlsLraLlve rules and regulaLlons
ln Lhe lmplemenLaLlon of Lhe MMuA's funcLlons 1here ls no granL of auLhorlLy Lo enacL
ordlnances and regulaLlons for Lhe general welfare of Lhe lnhablLanLs of Lhe meLropolls 17
(fooLnoLes omlLLed emphasls supplled)

1herefore lnsofar as Sec 3(f) of 8ep AcL no 7924 ls undersLood by Lhe lower courL and by
Lhe peLlLloner Lo granL Lhe MMuA Lhe power Lo conflscaLe and suspend or revoke drlvers'
llcenses wlLhouL need of any oLher leglslaLlve enacLmenL such ls an unauLhorlzed exerclse of
pollce power

3 Sec 3(f) granLs Lhe MMuA wlLh Lhe duLy Lo enforce exlsLlng Lrafflc rules and regulaLlons

SecLlon 3 of 8ep AcL no 7924 enumeraLes Lhe luncLlons and owers of Lhe MeLro Manlla
uevelopmenL AuLhorlLy" 1he conLesLed clause ln Sec 3(f) sLaLes LhaL Lhe peLlLloner shall
lnsLall and admlnlsLer a slngle LlckeLlng sysLem flx lmpose and collecL flnes and penalLles for
all klnds of vlolaLlons of Lrafflc rules and regulaLlons wheLher movlng or nonmovlng ln naLure
and conflscaLe and suspend or revoke drlvers' llcenses ln Lhe enforcemenL of such Lrafflc laws
and regulaLlons Lhe provlslons of 8ep AcL no 413618 and u no 160319 Lo Lhe conLrary
noLwlLhsLandlng" and LhaL (f)or Lhls purpose Lhe AuLhorlLy shall enforce all Lrafflc laws and
regulaLlons ln MeLro Manlla Lhrough lLs Lrafflc operaLlon cenLer and may depuLlze members
of Lhe n Lrafflc enforcers of local governmenL unlLs duly llcensed securlLy guards or
members of nongovernmenLal organlzaLlons Lo whom may be delegaLed cerLaln auLhorlLy
sub[ecL Lo such condlLlons and requlremenLs as Lhe AuLhorlLy may lmpose"

1hus where Lhere ls a Lrafflc law or regulaLlon valldly enacLed by Lhe leglslaLure or Lhose
agencles Lo whom leglslaLlve powers have been delegaLed (Lhe ClLy of Manlla ln Lhls case) Lhe
peLlLloner ls noL precluded and ln facL ls duLybound Lo conflscaLe and suspend or revoke
drlvers' llcenses ln Lhe exerclse of lLs mandaLe of LransporL and Lrafflc managemenL as well as
Lhe admlnlsLraLlon and lmplemenLaLlon of all Lrafflc enforcemenL operaLlons Lrafflc
englneerlng servlces and Lrafflc educaLlon programs20

1hls ls conslsLenL wlLh our rullng ln 8elAlr LhaL Lhe MMuA ls a developmenL auLhorlLy creaLed
for Lhe purpose of laylng down pollcles and coordlnaLlng wlLh Lhe varlous naLlonal
governmenL agencles people's organlzaLlons nongovernmenLal organlzaLlons and Lhe
prlvaLe secLor whlch may enforce buL noL enacL ordlnances

1hls ls also conslsLenL wlLh Lhe fundamenLal rule of sLaLuLory consLrucLlon LhaL a sLaLuLe ls Lo
be read ln a manner LhaL would breaLhe llfe lnLo lL raLher Lhan defeaL lL21 and ls supporLed
by Lhe crlLerla ln cases of Lhls naLure LhaL all reasonable doubLs should be resolved ln favor of
Lhe consLlLuLlonallLy of a sLaLuLe22

A lasL word 1he MMuA was lnLended Lo coordlnaLe servlces wlLh meLrowlde lmpacL LhaL
Lranscend local pollLlcal boundarles or would enLall huge expendlLures lf provlded by Lhe
lndlvldual LCus especlally wlLh regard Lo LransporL and Lrafflc managemenL23 and we are
aware of Lhe vallanL efforLs of Lhe peLlLloner Lo unLangle Lhe lncreaslngly Lrafflcsnarled roads
of MeLro Manlla 8uL Lhese laudable lnLenLlons are llmlLed by Lhe MMuA's enabllng law
whlch we can buL lnLerpreL and peLlLloner musL be remlnded LhaL lLs efforLs ln Lhls respecL
musL be auLhorlzed by a valld law or ordlnance or regulaLlon arlslng from a leglLlmaLe
source

WPL8LlC8L Lhe peLlLlon ls ulSMlSSLu
SC C8uL8Lu

uno (Chalrman) AusLrlaMarLlnez Calle[o Sr and 1lnga !! concur



Gk No L119694 May 22 199S

nILIINL kLSS INS1I1U1L INC for and |n beha|f of 139 members represented by |ts
res|dent Amado Macasaet and |ts Lxecut|ve D|rector Lrm|n I Garc|a Ir pet|t|oner
vs
CCMMISSICN CN LLLC1ICNS respondent

8 L S C L u 1 l C n

lLLlClAnC !

1he hlllpplne ress lnsLlLuLe lnc (l) ls before Lhls CourL assalllng Lhe consLlLuLlonal
valldlLy of 8esoluLlon no 2772 lssued by respondenL Commlsslon on LlecLlons (Comelec)
and lLs correspondlng Comelec dlrecLlve daLed 22 March 1993 Lhrough a eLlLlon for
CerLlorarl and rohlblLlon eLlLloner l ls a nonsLock nonproflL organlzaLlon of newspaper
and magazlne publlshers

Cn 2 March 1993 Comelec promulgaLed 8esoluLlon no 2772 whlch reads ln parL

xxx xxx xxx

Sec 2 Comelec Space 1he Commlsslon shall procure free prlnL space of noL less Lhan
one half (1/2) page ln aL leasL one newspaper of general clrculaLlon ln every provlnce or clLy
for use as Comelec Space from March 6 1993 ln Lhe case of candldaLes for senaLor and
from March 21 1993 unLll May 12 1993 ln Lhe absence of sald newspaper Comelec Space
shall be obLalned from any magazlne or perlodlcal of sald provlnce or clLy

Sec 3 uses of Comelec Space Comelec Space shall be allocaLed by Lhe Commlsslon
free of charge among all candldaLes wlLhln Lhe area ln whlch Lhe newspaper magazlne or
perlodlcal ls clrculaLed Lo enable Lhe candldaLes Lo make known Lhelr quallflcaLlons Lhelr
sLand on publlc lssues and Lhelr plaLforms and programs of governmenL

Comelec Space shall also be used by Lhe Commlsslon for dlssemlnaLlon of vlLal elecLlon
lnformaLlon

Sec 4 AllocaLlon of Comelec Space (a) Comelec Space shall also be avallable Lo all
candldaLes durlng Lhe perlods sLaLed ln SecLlon 2 hereof lLs allocaLlon shall be equal and
lmparLlal among all candldaLes for Lhe same offlce All candldaLes concerned shall be
furnlshed a copy of Lhe allocaLlon of Comelec Space for Lhelr lnformaLlon guldance and
compllance

(b) Any candldaLe deslrlng Lo avall hlmself of Comelec Space from newspapers or
publlcaLlons based ln Lhe MeLropollLan Manlla Area shall submlL an appllcaLlon Lherefor ln
wrlLlng Lo Lhe CommlLLee on Mass Medla of Lhe Commlsslon Any candldaLe deslrlng Lo avall
hlmself of Comelec Space ln newspapers or publlcaLlons based ln Lhe provlnces shall submlL
hls appllcaLlon Lherefor ln wrlLlng Lo Lhe rovlnclal LlecLlon Supervlsor concerned
AppllcaLlons for avallmenL of Comelec Space maybe flled aL any Llme from Lhe daLe of
effecLlvlLy of Lhls 8esoluLlon

(c) 1he CommlLLee on Mass Medla and Lhe rovlnclal LlecLlon Supervlsors shall
allocaLe avallable Comelec Space among Lhe candldaLes concerned by loLLery of whlch sald
candldaLes shall be noLlfled ln advance ln wrlLlng Lo be presenL personally or by
represenLaLlve Lo wlLness Lhe loLLery aL Lhe daLe Llme and place speclfled ln Lhe noLlce Any
parLy ob[ecLlng Lo Lhe resulL of Lhe loLLery may appeal Lo Lhe Commlsslon

(d) 1he candldaLes concerned shall be noLlfled by Lhe CommlLLee on Mass Medla or
Lhe rovlnclal LlecLlon Supervlsor as Lhe case maybe sufflclenLly ln advance and ln wrlLlng of
Lhe daLe of lssue and Lhe newspaper or publlcaLlon allocaLed Lo hlm and Lhe Llme wlLhln
whlch he musL submlL Lhe wrlLLen maLerlal for publlcaLlon ln Lhe Comelec Space

xxx xxx xxx

Sec 8 undue 8eference Lo CandldaLes/ollLlcal arLles ln newspapers no newspaper
or publlcaLlon shall allow Lo be prlnLed or publlshed ln Lhe news oplnlon feaLures or oLher
secLlons of Lhe newspaper or publlcaLlon accounLs or commenLs whlch manlfesLly favor or
oppose any candldaLe or pollLlcal parLy by unduly or repeaLedly referrlng Lo or lncludlng
Lhereln sald candldaLe or pollLlcal parLy Powever unless Lhe facLs and clrcumsLances clearly
lndlcaLe oLherwlse Lhe Commlsslon wlll respecL Lhe deLermlnaLlon by Lhe publlsher and/or
edlLors of Lhe newspapers or publlcaLlons LhaL Lhe accounLs or vlews publlshed are slgnlflcanL
newsworLhy and of publlc lnLeresL (Lmphasls supplled)

ApparenLly ln lmplemenLaLlon of Lhls 8esoluLlon Comelec Lhrough Commlssloner 8egalado L
Maambong senL ldenLlcal leLLers daLed 22 March 1993 Lo varlous publlshers of newspapers
llke Lhe 8uslness World Lhe hlllpplne SLar Lhe Malaya and Lhe hlllpplne 1lmes !ournal all
members of l 1hese leLLers read as follows

1hls ls Lo advlse you LhaL pursuanL Lo 8esoluLlon no 2772 of Lhe Commlsslon on LlecLlons
you are dlrecLed Lo provlde free prlnL space of noL less Lhan one half (1/2) page for use as
Comelec Space or slmllar Lo Lhe prlnL supporL whlch you have exLended durlng Lhe May 11
1992 synchronlzed elecLlons whlch was 2 full pages for each pollLlcal parLy fleldlng senaLorlal
candldaLes from March 6 1993 Lo May 6 1993 Lo make known Lhelr quallflcaLlons Lhelr
sLand on publlc lssues and Lhelr plaLforms and programs of governmenL

We shall be lnformlng Lhe pollLlcal parLles and candldaLes Lo submlL dlrecLly Lo you Lhelr
plcLures blographlcal daLa sLand on key publlc lssues and plaLforms of governmenL elLher as
raw daLa or ln Lhe form of poslLlves or cameraready maLerlals

lease be remlnded LhaL Lhe pollLlcal parLles/candldaLes may be accommodaLed ln your
publlcaLlon any day upon recelpL of Lhelr maLerlals unLll May 6 1993 whlch ls Lhe lasL day for
campalgnlng

We LrusL you Lo exLend your full supporL and cooperaLlon ln Lhls regard (Lmphasls supplled)

ln Lhls eLlLlon for CerLlorarl and rohlblLlon wlLh prayer for Lhe lssuance of a 1emporary
8esLralnlng Crder l asks us Lo declare Comelec 8esoluLlon no 2772 unconsLlLuLlonal and
vold on Lhe ground LhaL lL vlolaLes Lhe prohlblLlon lmposed by Lhe ConsLlLuLlon upon Lhe
governmenL and any of lLs agencles agalnsL Lhe Laklng of prlvaLe properLy for publlc use
wlLhouL [usL compensaLlon eLlLloner also conLends LhaL Lhe 22 March 1993 leLLer dlrecLlves
of Comelec requlrlng publlshers Lo glve free Comelec Space and aL Lhe same Llme process
raw daLa Lo make lL cameraready consLlLuLe lmposlLlons of lnvolunLary servlLude conLrary
Lo Lhe provlslons of SecLlon 18 (2) ArLlcle lll of Lhe 1987 ConsLlLuLlon llnally l argues LhaL
SecLlon 8 of Comelec 8esoluLlon no 2772 ls vlolaLlve of Lhe consLlLuLlonally guaranLeed
freedom of speech of Lhe press and of expresslon 1

Cn 20 Aprll 1993 Lhls CourL lssued a 1emporary 8esLralnlng Crder en[olnlng Comelec from
enforclng and lmplemenLlng SecLlon 2 of 8esoluLlon no 2772 as well as Lhe Comelec
dlrecLlves addressed Lo varlous prlnL medla enLerprlses all daLed 22 March 1993 1he CourL
also requlred Lhe respondenL Lo flle a CommenL on Lhe eLlLlon

1he Cfflce of Lhe SollclLor Ceneral flled lLs CommenL on behalf of respondenL Comelec
alleglng LhaL Comelec 8esoluLlon no 2772 does noL lmpose upon Lhe publlshers any
obllgaLlon Lo provlde free prlnL space ln Lhe newspapers as lL does noL provlde any crlmlnal or
admlnlsLraLlve sancLlon for noncompllance wlLh LhaL 8esoluLlon Accordlng Lo Lhe SollclLor
Ceneral Lhe quesLloned 8esoluLlon merely esLabllshed guldellnes Lo be followed ln
connecLlon wlLh Lhe procuremenL of Comelec space Lhe procedure for and mode of
allocaLlon of such space Lo candldaLes and Lhe condlLlons or requlremenLs for Lhe candldaLes
uLlllzaLlon of Lhe Comelec space procured AL Lhe same Llme however Lhe SollclLor Ceneral
argues LhaL even lf Lhe quesLloned 8esoluLlon and lLs lmplemenLlng leLLer dlrecLlves are
vlewed as mandaLory Lhe same would neverLheless be valld as an exerclse of Lhe pollce
power of Lhe SLaLe 1he SollclLor Ceneral also malnLalns LhaL SecLlon 8 of 8esoluLlon no 2772
ls a permlsslble exerclse of Lhe power of supervlslon or regulaLlon of Lhe Comelec over Lhe
communlcaLlon and lnformaLlon operaLlons of prlnL medla enLerprlses durlng Lhe elecLlon
perlod Lo safeguard and ensure a falr lmparLlal and credlble elecLlon 2

AL Lhe oral hearlng of Lhls case held on 28 Aprll 1993 respondenL Comelec Lhrough lLs
Chalrman Pon 8ernardo ardo ln response Lo lnqulrles from Lhe Chlef !usLlce and oLher
Members of Lhe CourL sLaLed LhaL 8esoluLlon no 2772 parLlcularly SecLlon 2 Lhereof and Lhe
22 March 1993 leLLers dlspaLched Lo varlous members of peLlLloner l were noL lnLended Lo
compel Lhose members Lo supply Comelec wlLh free prlnL space Chalrman ardo represenLed
Lo Lhe CourL LhaL 8esoluLlon and Lhe relaLed leLLerdlrecLlves were merely deslgned Lo sollclL
from Lhe publlshers Lhe same free prlnL space whlch many publlshers had volunLarlly glven Lo
Comelec durlng Lhe elecLlon perlod relaLlng Lo Lhe 11 May 1992 elecLlons lndeed Lhe
Chalrman sLaLed LhaL Lhe Comelec would LhaL very afLernoon meeL and adopL an
approprlaLe amendlng or clarlfylng resoluLlon a cerLlfled Lrue copy of whlch would forLhwlLh
be flled wlLh Lhe CourL

Cn 3 May 1993 Lhe CourL recelved from Lhe Cfflce of Lhe SollclLor Ceneral a manlfesLaLlon
whlch aLLached a copy of Comelec 8esoluLlon no 2772A daLed 4 May 1993 1he operaLlve
porLlon of Lhls 8esoluLlon follows

nCW 1PL8LlC8L pursuanL Lo Lhe powers vesLed ln lL by Lhe ConsLlLuLlon Lhe Cmnlbus
LlecLlon Code 8epubllc AcLs no 6646 and 7166 and oLher elecLlon laws Lhe Commlsslon on
LlecLlons 8LSCLvLu Lo clarlfy SecLlons 2 and 8 of 8es no 2772 as follows

1 SecLlon 2 of 8es no 2772 shall noL be consLrued Lo mean as requlrlng publlshers
of Lhe dlfferenL mass medla prlnL publlcaLlons Lo provlde prlnL space under paln of
prosecuLlon wheLher admlnlsLraLlve clvll or crlmlnal Lhere belng no sancLlon or penalLy for
vlolaLlon of sald SecLlon provlded for elLher ln sald 8esoluLlon or ln SecLlon 90 of 8aLas
ambansa 8lg 881 oLherwlse known as Lhe Cmnlbus LlecLlon Code on Lhe granL of Comelec
space

2 SecLlon 8 of 8es no 2772 shall noL be consLrued Lo mean as consLlLuLlng prlor
resLralnL on Lhe parL of publlshers wlLh respecL Lo Lhe prlnLlng or publlcaLlon of maLerlals ln
Lhe news oplnlon feaLures or oLher secLlons of Lhelr respecLlve publlcaLlons or oLher
accounLs or commenLs lL belng clear from Lhe lasL senLence of sald SecLlon 8 LhaL Lhe
Commlsslon shall unless Lhe facLs and clrcumsLances clearly lndlcaLe oLherwlse respecL
Lhe deLermlnaLlon by Lhe publlsher and/or edlLors of Lhe newspapers or publlcaLlons LhaL Lhe
accounLs or vlews publlshed are slgnlflcanL newsworLhy and of publlc lnLeresL

1hls 8esoluLlon shall Lake effecL upon approval (Lmphasls ln Lhe orlglnal)

Whlle aL Lhls polnL Lhe CourL could perhaps slmply dlsmlss Lhe eLlLlon for CerLlorarl and
rohlblLlon as havlng become mooL and academlc we conslder lL noL lnapproprlaLe Lo pass
upon Lhe flrsL consLlLuLlonal lssue ralsed ln Lhls case Cur hope ls Lo puL Lhls lssue Lo resL and
prevenL lLs resurrecLlon

SecLlon 2 of 8esoluLlon no 2772 ls noL a model of clarlLy ln expresslon SecLlon 1 of
8esoluLlon no 2772A dld noL Lry Lo redrafL SecLlon 2 accordlngly SecLlon 2 of 8esoluLlon
no 2772 perslsLs ln lLs orlglnal form 1hus we musL polnL ouL LhaL as presenLly worded and
ln parLlcular as lnLerpreLed and applled by Lhe Comelec lLself ln lLs 22 March 1993 leLLer
dlrecLlves Lo newspaper publlshers SecLlon 2 of 8esoluLlon no 2772 ls clearly suscepLlble of
Lhe readlng LhaL peLlLloner l has glven lL 1haL 8esoluLlon no 2772 does noL ln express
Lerms LhreaLen publlshers who would dlsregard lL or lLs lmplemenLlng leLLers wlLh some
crlmlnal or oLher sancLlon does noL by lLself demonsLraLe LhaL Lhe Comelecs orlglnal
lnLenLlon was slmply Lo sollclL or requesL volunLary donaLlons of prlnL space from publlshers
A wrlLLen communlcaLlon offlclally dlrecLlng a prlnL medla company Lo supply free prlnL space
dlspaLched by a governmenL (here a consLlLuLlonal) agency and slgned by a member of Lhe
Commlsslon presumably legally auLhorlzed Lo do so ls bound Lo produce a coerclve effecL
upon Lhe company so addressed 1haL Lhe agency may noL be legally auLhorlzed Lo lmpose or
cause Lhe lmposlLlon of crlmlnal or oLher sancLlons for dlsregard of such dlrecLlons only
aggravaLes Lhe consLlLuLlonal dlfflculLles lnhearlng ln Lhe presenL slLuaLlon 1he enacLmenL or
addlLlon of such sancLlons by Lhe leglslaLlve auLhorlLy lLself would be open Lo serlous
consLlLuLlonal ob[ecLlon

1o compel prlnL medla companles Lo donaLe Comelecspace of Lhe dlmenslons speclfled ln
SecLlon 2 of 8esoluLlon no 2772 (noL less Lhan onehalf page) amounLs Lo Laklng of prlvaLe
personal properLy for publlc use or purposes SecLlon 2 falled Lo speclfy Lhe lnLended
frequency of such compulsory donaLlon only once durlng Lhe perlod from 6 March 1993 (or
21 March 1993) unLll 12 May 1993? or everyday or once a week? or as ofLen as Comelec may
dlrecL durlng Lhe same perlod? 1he exLenL of Lhe Laklng or deprlvaLlon ls noL lnsubsLanLlal
Lhls ls noL a case of a de mlnlmls Lemporary llmlLaLlon or resLralnL upon Lhe use of prlvaLe
properLy 1he moneLary value of Lhe compulsory donaLlon measured by Lhe adverLlslng
raLes ordlnarlly charged by newspaper publlshers wheLher ln clLles or ln nonurban areas may
be very subsLanLlal lndeed

1he Laklng of prlnL space here soughL Lo be effecLed may flrsL be appralsed under Lhe rubrlc
of exproprlaLlon of prlvaLe personal properLy for publlc use 1he Lhreshold requlslLes for a
lawful Laklng of prlvaLe properLy for publlc use need Lo be examlned here one ls Lhe necesslLy
for Lhe Laklng anoLher ls Lhe legal auLhorlLy Lo effecL Lhe Laklng 1he elemenL of necesslLy for
Lhe Laklng has noL been shown by respondenL Comelec lL has noL been suggesLed LhaL Lhe
members of l are unwllllng Lo sell prlnL space aL Lhelr normal raLes Lo Comelec for elecLlon
purposes lndeed Lhe unwllllngness or relucLance of Comelec Lo buy prlnL space lles aL Lhe
hearL of Lhe problem 3 Slmllarly lL has noL been suggesLed leL alone demonsLraLed LhaL
Comelec has been granLed Lhe power of emlnenL domaln elLher by Lhe ConsLlLuLlon or by Lhe
leglslaLlve auLhorlLy A reasonable relaLlonshlp beLween LhaL power and Lhe enforcemenL and
admlnlsLraLlon of elecLlon laws by Comelec musL be shown lL ls noL casually Lo be assumed

1haL Lhe Laklng ls deslgned Lo subserve publlc use ls noL conLesLed by peLlLloner l We
noLe only LhaL under SecLlon 3 of 8esoluLlon no 2772 Lhe free Comelec space soughL by
Lhe respondenL Commlsslon would be used noL only for lnformlng Lhe publlc abouL Lhe
ldenLlLles quallflcaLlons and programs of governmenL of candldaLes for elecLlve offlce buL
also for dlssemlnaLlon of vlLal elecLlon lnformaLlon (lncludlng presumably clrculars
regulaLlons noLlces dlrecLlves eLc lssued by Comelec) lL seems Lo Lhe CourL a maLLer of
[udlclal noLlce LhaL governmenL offlces and agencles (lncludlng Lhe Supreme CourL) slmply
purchase prlnL space ln Lhe ordlnary course of evenLs when Lhelr rules and regulaLlons
clrculars noLlces and so forLh need offlclally Lo be broughL Lo Lhe aLLenLlon of Lhe general
publlc

1he Laklng of prlvaLe properLy for publlc use ls of course auLhorlzed by Lhe ConsLlLuLlon buL
noL wlLhouL paymenL of [usL compensaLlon (ArLlcle lll SecLlon 9) And apparenLly Lhe
necesslLy of paylng compensaLlon for Comelec space ls preclsely whaL ls soughL Lo be
avolded by respondenL Commlsslon wheLher SecLlon 2 of 8esoluLlon no 2772 ls read as
peLlLloner l reads lL as an asserLlon of auLhorlLy Lo requlre newspaper publlshers Lo
donaLe free prlnL space for Comelec purposes or as an exhorLaLlon or perhaps an appeal
Lo publlshers Lo donaLe free prlnL space as SecLlon 1 of 8esoluLlon no 2772A aLLempLs Lo
suggesL 1here ls noLhlng aL all Lo prevenL newspaper and magazlne publlshers from
volunLarlly glvlng free prlnL space Lo Comelec for Lhe purposes conLemplaLed ln 8esoluLlon
no 2772 SecLlon 2 of 8esoluLlon no 2772 does noL however provlde a consLlLuLlonal basls
for compelllng publlshers agalnsL Lhelr wlll ln Lhe klnd of facLual conLexL here presenL Lo
provlde free prlnL space for Comelec purposes SecLlon 2 does noL consLlLuLe a valld exerclse
of Lhe power of emlnenL domaln

We would noLe LhaL Lhe rullng here lald down by Lhe CourL ls enLlrely ln llne wlLh Lhe Lheory
of democraLlc represenLaLlve governmenL 1he economlc cosLs of lnformlng Lhe general
publlc abouL Lhe quallflcaLlons and programs of Lhose seeklng elecLlve offlce are mosL
approprlaLely dlsLrlbuLed as wldely as posslble LhroughouL our socleLy by Lhe uLlllzaLlon of
publlc funds especlally funds ralsed by LaxaLlon raLher Lhan casL solely on one small secLor of
socleLy le prlnL medla enLerprlses 1he beneflLs whlch flow from a helghLened level of
lnformaLlon on and Lhe awareness of Lhe elecLoral process are commonly LhoughL Lo be
communlLywlde Lhe burdens should be allocaLed on Lhe same basls

As earller noLed Lhe SollclLor Ceneral also conLended LhaL SecLlon 2 of 8esoluLlon no 2772
even lf read as compelllng publlshers Lo donaLe Comelec space may be susLalned as a
valld exerclse of Lhe pollce power of Lhe sLaLe 1hls argumenL was however made Loo
casually Lo requlre prolonged conslderaLlon on our parL llrsLly Lhere was no efforL (and
apparenLly no lncllnaLlon on Lhe parL of Comelec) Lo show LhaL Lhe pollce power essenLlally
a power of leglslaLlon has been consLlLuLlonally delegaLed Lo respondenL Commlsslon 4
Secondly whlle prlvaLe properLy may lndeed be valldly Laken ln Lhe leglLlmaLe exerclse of Lhe
pollce power of Lhe sLaLe Lhere was no aLLempL Lo show compllance ln Lhe lnsLanL case wlLh
Lhe requlslLes of a lawful Laklng under Lhe pollce power 3

SecLlon 2 of 8esoluLlon no 2772 ls a blunL and heavy lnsLrumenL LhaL purporLs wlLhouL a
showlng of exlsLence of a naLlonal emergency or oLher lmperlous publlc necesslLy
lndlscrlmlnaLely and wlLhouL regard Lo Lhe lndlvldual buslness condlLlon of parLlcular
newspapers or magazlnes locaLed ln dlfferlng parLs of Lhe counLry Lo Lake prlvaLe properLy of
newspaper or magazlne publlshers no aLLempL was made Lo demonsLraLe LhaL a real and
palpable or urgenL necesslLy for Lhe Laklng of prlnL space confronLed Lhe Comelec and LhaL
SecLlon 2 of 8esoluLlon no 2772 was lLself Lhe only reasonable and callbraLed response Lo
such necesslLy avallable Lo Lhe Comelec SecLlon 2 does noL consLlLuLe a valld exerclse of Lhe
pollce power of Lhe SLaLe

We Lurn Lo SecLlon 8 of 8esoluLlon no 2772 whlch needs Lo be quoLed ln full agaln

Sec 8 undue 8eference Lo CandldaLes/ollLlcal arLles ln newspapers no newspaper
or publlcaLlon shall allow Lo be prlnLed or publlshed ln Lhe news oplnlon feaLures or oLher
secLlons of Lhe newspaper or publlcaLlon accounLs or commenLs whlch manlfesLly favor or
oppose any candldaLe or pollLlcal parLy by unduly or repeaLedly referrlng Lo or lncludlng
Lhereln sald candldaLe or pollLlcal parLy Powever unless Lhe facLs and clrcumsLances clearly
lndlcaLe oLherwlse Lhe Commlsslon wlll respecL Lhe deLermlnaLlon by Lhe publlsher and/or
edlLors of Lhe newspapers or publlcaLlons LhaL Lhe accounLs or vlews publlshed are slgnlflcanL
newsworLhy and of publlc lnLeresL

lL ls noL easy Lo undersLand why SecLlon 8 was lncluded aL all ln 8esoluLlon no 2772 ln any
case SecLlon 8 should be vlewed ln Lhe conLexL of our declslon ln naLlonal ress Club v
Commlsslon on LlecLlons 6 1here Lhe CourL susLalned Lhe consLlLuLlonallLy of SecLlon 11 (b)
of 8A no 6646 known as Lhe LlecLoral 8eforms Law of 1987 whlch prohlblLs Lhe sale or
donaLlon of prlnL space and alrLlme for campalgn or oLher pollLlcal purposes excepL Lo Lhe
Comelec ln dolng so Lhe CourL carefully dlsLlngulshed (a) pald pollLlcal adverLlsemenLs whlch
are reached by Lhe prohlblLlon of SecLlon 11 (b) from (b) Lhe reporLlng of news
commenLarles and expresslons of bellef or oplnlon by reporLers broadcasLers edlLors
commenLaLors or columnlsLs whlch fall ouLslde Lhe scope of SecLlon 11 (b) and whlch are
proLecLed by Lhe consLlLuLlonal guaranLees of freedom of speech and of Lhe press

Secondly and more lmporLanLly SecLlon 11 (b) ls llmlLed ln lLs scope of appllcaLlon Analysls
of SecLlon 11 (b) shows LhaL lL purporLs Lo apply only Lo Lhe purchase and sale lncludlng
purchase and sale dlsgulsed as a donaLlon of prlnL space and alr Llme for campalgn or oLher
pollLlcal purposes SecLlon 11 (b) does noL purporL ln any way Lo resLrlcL Lhe reporLlng by
newspapers or radlo or Lelevlslon sLaLlons of news or newsworLhy evenLs relaLlng Lo
candldaLes Lhelr quallflcaLlons pollLlcal parLles and programs of governmenL Moreover
SecLlon 11 (b) does noL reach commenLarles and expresslons of bellef or oplnlon by reporLers
or broadcasLer or edlLors or commenLaLors or columnlsLs ln respecL of candldaLes Lhelr
quallflcaLlons and programs and so forLh so long aL leasL as such commenLs oplnlons and
bellefs are noL ln facL adverLlsemenLs for parLlcular candldaLes coverLly pald for ln sum
SecLlon 11 (b) ls noL Lo be read as reachlng any reporL or commenLary or oLher coverage LhaL
ln responslble medla ls noL pald for by candldaLes for pollLlcal offlce We read SecLlon 11 (b)
as deslgned Lo cover only pald pollLlcal adverLlsemenLs of parLlcular candldaLes

1he above llmlLaLlon ln scope of appllcaLlon of SecLlon 11 (b) LhaL lL does noL resLrlcL elLher
Lhe reporLlng of or Lhe expresslon of bellef or oplnlon or commenL upon Lhe quallflcaLlons
and programs and acLlvlLles of any and all candldaLes for offlce consLlLuLes Lhe crlLlcal
dlsLlncLlon whlch musL be made beLween Lhe lnsLanL case and LhaL of Sanldad v Commlsslon
on LlecLlons 7 (ClLaLlons omlLLed emphasls supplled)

SecLlon 8 of 8esoluLlon no 2772 appears Lo represenL Lhe efforL of Lhe Comelec Lo esLabllsh a
guldellne for lmplemenLaLlon of Lhe abovequoLed dlsLlncLlon and docLrlne ln naLlonal ress
Club an efforL noL blessed wlLh evldenL success SecLlon 2 of 8esoluLlon no 2772A whlle
posslbly helpful does noL add subsLanLlally Lo Lhe uLlllLy of SecLlon 8 of 8esoluLlon no 2772
1he dlsLlncLlon beLween pald pollLlcal adverLlsemenLs on Lhe one hand and news reporLs
commenLarles and expresslons of bellef or oplnlon by reporLers broadcasLers edlLors eLc on
Lhe oLher hand can reallsLlcally be glven operaLlve meanlng only ln acLual cases or
conLroversles on a caseLocase basls ln Lerms of very speclflc seLs of facLs

AL all evenLs Lhe CourL ls bound Lo noLe LhaL l has falled Lo allege any speclflc afflrmaLlve
acLlon on Lhe parL of Comelec deslgned Lo enforce or lmplemenL SecLlon 8 l has noL
clalmed LhaL lL or any of lLs members has susLalned acLual or lmmlnenL ln[ury by reason of
Comelec acLlon under SecLlon 8 uL a llLLle dlfferenLly Lhe CourL conslders LhaL Lhe preclse
consLlLuLlonal lssue here soughL Lo be ralsed wheLher or noL SecLlon 8 of 8esoluLlon no
2772 consLlLuLes a permlsslble exerclse of Lhe Comelecs power under ArLlcle lx SecLlon 4 of
Lhe ConsLlLuLlon Lo

supervlse or regulaLe Lhe en[oymenL or uLlllzaLlon of all franchlse or permlLs for Lhe operaLlon
of medla of communlcaLlon or lnformaLlon for Lhe purpose of ensurlng equal
opporLunlLy Llme and space and Lhe rlghL of reply lncludlng reasonable equal raLes
Lherefore for publlc lnformaLlon campalgns and forums among candldaLes ln connecLlon wlLh
Lhe ob[ecLlve of holdlng free orderly honesL peaceful and credlble elecLlons

ls noL rlpe for [udlclal revlew for lack of an acLual case or conLroversy lnvolvlng as Lhe very lls
moLa Lhereof Lhe consLlLuLlonallLy of SecLlon 8

Summarlzlng our concluslons

1 SecLlon 2 of 8esoluLlon no 2772 ln lLs presenL form and as lnLerpreLed by
Comelec ln lLs 22 March 1993 leLLer dlrecLlves purporLs Lo requlre prlnL medla enLerprlses Lo
donaLe free prlnL space Lo Comelec As such SecLlon 2 suffers from a faLal consLlLuLlonal
vlce and musL be seL aslde and nulllfled

2 1o Lhe exLenL lL perLalns Lo SecLlon 8 of 8esoluLlon no 2772 Lhe eLlLlon for
CerLlorarl and rohlblLlon musL be dlsmlssed for lack of an acLual [usLlclable case or
conLroversy

WPL8LlC8L for all Lhe foregolng Lhe eLlLlon for CerLlorarl and rohlblLlon ls C8An1Lu ln
parL and SecLlon 2 of 8esoluLlon no 2772 ln lLs presenL form and Lhe relaLed leLLerdlrecLlves
daLed 22 March 1993 are hereby SL1 ASluL as null and vold and Lhe 1emporary 8esLralnlng
Crder ls hereby MAuL L8MAnLn1 1he eLlLlon ls ulSMlSSLu ln parL Lo Lhe exLenL lL relaLes
Lo SecLlon 8 of 8esoluLlon no 2772 no pronouncemenL as Lo cosLs

narvasa C! adllla 8egalado uavlde !r 8omero 8elloslllo Melo uno vlLug kapunan
Mendoza and lranclsco !! concur

Culason ! ls on leave


Gk No 78164 Iu|y 31 1987

1LkLSI1A 1A8LAkIN MA LU2 CIkIACC MA NIMIA 8 kCVIkA LVANGLLINA S LA8AC |n
the|r beha|f and |n beha|f of app||cants for adm|ss|on |nto the Med|ca| Co||eges dur|ng the
schoo| year 198788 and future years who have not taken or successfu||y hurd|ed t||e
Nat|ona| Med|ca| Adm|ss|on 1est (NMA1) pet|t|oners
vs
1nL nCNCkA8LL IUDGL ANGLLINA S GU1ILkkL2 res|d|ng Iudge of 8ranch kkkVII of the
keg|ona| 1r|a| Court of the Nat|ona| Cap|ta| Iud|c|a| keg|on w|th seat at Man||a 1nL
nCNCkA8LL SLCkL1Ak LCUkDLS UISUM8ING |n her capac|ty as Cha|rman of the 8CAkD
CI MLDICAL LDUCA1ICN and 1nL CLN1Lk ICk LDUCA1ICNAL MLASUkLMLN1 (CLM)
respondents

lLLlClAnC !

1he peLlLloners soughL admlsslon lnLo colleges or schools of medlclne for Lhe school year
19871988 Powever Lhe peLlLloners elLher dld noL Lake or dld noL successfully Lake Lhe
naLlonal Medlcal Admlsslon 1esL (nMA1) requlred by Lhe 8oard of Medlcal LducaLlon one of
Lhe publlc respondenLs and admlnlsLered by Lhe prlvaLe respondenL Lhe CenLer for
LducaLlonal MeasuremenL (CLM)

Cn 3 March 1987 Lhe peLlLloners flled wlLh Lhe 8eglonal 1rlal CourL naLlonal CaplLal !udlclal
8eglon a eLlLlon for ueclaraLory !udgmenL and rohlblLlon wlLh a prayer for 1emporary
8esLralnlng Crder and rellmlnary ln[uncLlon 1he peLlLloners soughL Lo en[oln Lhe SecreLary
of LducaLlon CulLure and SporLs Lhe 8oard of Medlcal LducaLlon and Lhe CenLer for
LducaLlonal MeasuremenL from enforclng SecLlon 3 (a) and (f) of 8epubllc AcL no 2382 as
amended and MLCS Crder no 32 serles of 1983 daLed 23 AugusL 1983 and from requlrlng
Lhe Laklng and passlng of Lhe nMA1 as a condlLlon for securlng cerLlflcaLes of ellglblllLy for
admlsslon from proceedlng wlLh accepLlng appllcaLlons for Laklng Lhe nMA1 and from
admlnlsLerlng Lhe nMA1 as scheduled on 26 Aprll 1987 and ln Lhe fuLure AfLer hearlng on Lhe
peLlLlon for lssuance of prellmlnary ln[uncLlon Lhe Lrlal courL denled sald peLlLlon on 20 Aprll
1987 1he nMA1 was conducLed and admlnlsLered as prevlously scheduled

eLlLloners accordlngly flled Lhls Speclal Clvll AcLlon for cerLlorarl wlLh Lhls CourL Lo seL aslde
Lhe Crder of Lhe respondenL [udge denylng Lhe peLlLlon for lssuance of a wrlL of prellmlnary
ln[uncLlon

8epubllc AcL 2382 as amended by 8epubllc AcLs nos 4224 and 3946 known as Lhe Medlcal
AcL of 1939 deflnes lLs baslc ob[ecLlves ln Lhe followlng manner

SecLlon 1 Cb[ecLlves 1hls AcL provldes for and shall govern (a) Lhe sLandardlzaLlon and
regulaLlon of medlcal educaLlon (b) Lhe examlnaLlon for reglsLraLlon of physlclans and (c) Lhe
supervlslon conLrol and regulaLlon of Lhe pracLlce of medlclne ln Lhe hlllpplnes
(underscorlng supplled)

1he sLaLuLe among oLher Lhlngs creaLed a 8oard of Medlcal LducaLlon whlch ls composed of
(a) Lhe SecreLary of LducaLlon CulLure and SporLs or hls duly auLhorlzed represenLaLlve as
Chalrman (b) Lhe SecreLary of PealLh or hls duly auLhorlzed represenLaLlve (c) Lhe ulrecLor of
Plgher LducaLlon or hls duly auLhorlzed represenLaLlve (d) Lhe Chalrman of Lhe Medlcal
8oard or hls duly auLhorlzed represenLaLlve (e) a represenLaLlve of Lhe hlllpplne Medlcal
AssoclaLlon (f) Lhe uean of Lhe College of Medlclne unlverslLy of Lhe hlllpplnes (g) a
represenLaLlve of Lhe Councll of ueans of hlllpplne Medlcal Schools and (h) a represenLaLlve
of Lhe AssoclaLlon of hlllpplne Medlcal Colleges as members 1he funcLlons of Lhe 8oard of
Medlcal LducaLlon speclfled ln SecLlon 3 of Lhe sLaLuLe lnclude Lhe followlng

(a) 1o deLermlne and prescrlbe equlremenLs for admlsslon lnLo a recognlzed college
of medlclne

(b) 1o deLermlne and prescrlbe requlremenLs for mlnlmum physlcal faclllLles of
colleges of medlclne Lo wlL bulldlngs lncludlng hosplLals equlpmenL and supplles
apparaLus lnsLrumenLs appllances laboraLorles bed capaclLy for lnsLrucLlon purposes
operaLlng and dellvery rooms faclllLles for ouLpaLlenL servlces and oLhers used for dldacLlc
and pracLlcal lnsLrucLlon ln accordance wlLh modern Lrends

(c) 1o deLermlne and prescrlbe Lhe mlnlmum number and mlnlmum quallflcaLlons of
Leachlng personnel lncludlng sLudenLLeachers raLlo

(d) 1o deLermlne and prescrlbe Lhe mlnlmum requlred currlculum leadlng Lo Lhe
degree of uocLor of Medlclne

(e) 1o auLhorlze Lhe lmplemenLaLlon of experlmenLal medlcal currlculum ln a medlcal
school LhaL has excepLlonal faculLy and lnsLrumenLal faclllLles Such an experlmenLal
currlculum may prescrlbe admlsslon and graduaLlon requlremenLs oLher Lhan Lhose
prescrlbed ln Lhls AcL rovlded 1haL only excepLlonal sLudenLs shall be enrolled ln Lhe
experlmenLal currlculum

(f) 1o accepL appllcaLlons for cerLlflcaLlon for admlsslon Lo a medlcal school and keep a
reglsLer of Lhose lssued sald cerLlflcaLe and Lo collecL from sald appllcanLs Lhe amounL of
LwenLyflve pesos each whlch shall accrue Lo Lhe operaLlng fund of Lhe 8oard of Medlcal
LducaLlon

(g) 1o selecL deLermlne and approve hosplLals or some deparLmenLs of Lhe hosplLals
for Lralnlng whlch comply wlLh Lhe mlnlmum speclflc physlcal faclllLles as provlded ln
subparagraph (b) hereof and

(h) 1o promulgaLe and prescrlbe and enforce Lhe necessary rules and regulaLlons for
Lhe proper lmplemenLaLlon of Lhe foregolng funcLlons (Lmphasls supplled)

SecLlon 7 prescrlbes cerLaln mlnlmum requlremenLs for appllcanLs Lo medlcal schools

Admlsslon requlremenLs 1he medlcal college may admlL any sLudenL who has noL been
convlcLed by any courL of compeLenL [urlsdlcLlon of any offense lnvolvlng moral LurplLude and
who presenLs (a) a record of compleLlon of a bachelors degree ln sclence or arLs (b) a
cerLlflcaLe of ellglblllLy for enLrance Lo a medlcal school from Lhe 8oard of Medlcal LducaLlon
(c) a cerLlflcaLe of good moral characLer lssued by Lwo former professors ln Lhe college of
llberal arLs and (d) blrLh cerLlflcaLe noLhlng ln Lhls acL shall be consLrued Lo lnhlblL any
college of medlclne from esLabllshlng ln addlLlon Lo Lhe precedlng oLher enLrance
requlremenLs LhaL may be deemed admlsslble

x x x x x x x x x (Lmphasls supplled)

MLCS Crder no 32 s 1983 lssued by Lhe Lhen MlnlsLer of LducaLlon CulLure and SporLs and
daLed 23 AugusL 1983 esLabllshed a unlform admlsslon LesL called Lhe naLlonal Medlcal
Admlsslon 1esL (nMA1) as an addlLlonal requlremenL for lssuance of a cerLlflcaLe of ellglblllLy
for admlsslon lnLo medlcal schools of Lhe hlllpplnes beglnnlng wlLh Lhe school year 1986
1987 1hls Crder goes on Lo sLaLe LhaL

2 1he nMA1 an apLlLude LesL ls consldered as an lnsLrumenL Loward upgradlng Lhe
selecLlon of appllcanLs for admlsslon lnLo Lhe medlcal schools and lLs calculaLed Lo lmprove
Lhe quallLy of medlcal educaLlon ln Lhe counLry 1he cuLoff score for Lhe successful appllcanLs
based on Lhe scores on Lhe nMA1 shall be deLermlned every year by Lhe 8oard of Medlcal
LducaLlon afLer consulLaLlon wlLh Lhe AssoclaLlon of hlllpplne Medlcal Colleges 1he nMA1
raLlng of each appllcanL LogeLher wlLh Lhe oLher admlsslon requlremenLs as presenLly called
for under exlsLlng rules shall serve as a basls for Lhe lssuance of Lhe prescrlbed cerLlflcaLe of
eleglblllLy for admlsslon lnLo Lhe medlcal colleges

3 Sub[ecL Lo Lhe prlor approval of Lhe 8oard of Medlcal LducaLlon each medlcal
college may glve oLher LesLs for appllcanLs who have been lssued a correspondlng cerLlflcaLe
of ellglblllLy for admlsslon LhaL wlll yleld lnformaLlon on oLher aspecLs of Lhe appllcanLs
personallLy Lo complemenL Lhe lnformaLlon derlved from Lhe nMA1

x x x x x x x x x

8 no appllcanL shall be lssued Lhe requlslLe CerLlflcaLe of LllglblllLy for Admlsslon
(CLA) or admlLLed for enrollmenL as flrsL year sLudenL ln any medlcal college beglnnlng Lhe
school year 198687 wlLhouL Lhe requlred nMA1 quallflcaLlon as called for under Lhls Crder
(underscorlng supplled)

ursuanL Lo MLCS Crder no 32 s 1983 Lhe prlvaLe respondenL CenLer conducLed nMA1s for
enLrance Lo medlcal colleges durlng Lhe school year 19861987 ln uecember 1986 and ln
Aprll 1987 respondenL CenLer conducLed Lhe nMA1s for admlsslon Lo medlcal colleges durlng
Lhe school year 19871988

eLlLloners ralse Lhe quesLlon of wheLher or noL a wrlL of prellmlnary ln[uncLlon may be lssued
Lo en[oln Lhe enforcemenL of SecLlon 3 (a) and (f) of 8epubllc AcL no 2382 as amended and
MLCS Crder no 32 s 1983 pendlng resoluLlon of Lhe lssue of consLlLuLlonallLy of Lhe
assalled sLaLuLe and admlnlsLraLlve order We regard Lhls lssue as enLlrely perlpheral ln
naLure lL scarcely needs documenLaLlon LhaL a courL would lssue a wrlL of prellmlnary
ln[uncLlon only when Lhe peLlLloner assalllng a sLaLuLe or admlnlsLraLlve order has made ouL a
case of unconsLlLuLlonallLy sLrong enough Lo overcome ln Lhe mlnd of Lhe [udge Lhe
presumpLlon of consLlLuLlonallLy aslde from showlng a clear legal rlghL Lo Lhe remedy soughL
1he fundamenLal lssue ls of course Lhe consLlLuLlonallLy of Lhe sLaLuLe or order assalled

1 1he peLlLloners lnvoke a number of provlslons of Lhe 1987 ConsLlLuLlon whlch are
ln Lhelr asserLlon vlolaLed by Lhe conLlnued lmplemenLaLlon of SecLlon 3 (a) and (f) of
8epubllc AcL 2381 as amended and MLCS Crder no 32 s 1983 1he provlslons lnvoked read
as follows

(a) ArLlcle 11 SecLlon 11 1he sLaLe values Lhe dlgnlLy of every human person and
guaranLees full respecL of human rlghLs

(b) ArLlclell SecLlon l3 1he SLaLe recognlzes Lhe vlLal role of Lhe youLh ln naLlon
bulldlng and shall promoLe and proLecL Lhelr physlcal moral splrlLual lnLellecLual and soclal
well belng lL shall lnculcaLe ln Lhe youLh paLrloLlsm and naLlonallsm and encourage Lhelr
lnvolvemenL ln publlc and clvlc affalrs

(c) ArLlcle ll SecLlon 17 1he SLaLe shall glve prlorlLy Lo educaLlon sclence and
Lechnology arLs culLure and sporLs Lo fosLer paLrloLlsm and naLlonallsm acceleraLe soclal
progress and Lo promoLe LoLal human llberaLlon and developmenL

(d) ArLlcle xlv SecLlon l 1he SLaLe shall proLecL and promoLe Lhe rlghL of all clLlzens
Lo quallLy educaLlon aL all levels and Lake approprlaLe sLeps Lo make such educaLlon
accesslble Lo all

(e) ArLlcle xlv SecLlon 3 (3) Lvery clLlzen has a rlghL Lo selecL a professlon or course
of sLudy sub[ecL Lo falr reasonable and equlLable admlsslon and academlc requlremenLs

ArLlcle ll of Lhe 1987 ConsLlLuLlon seLs forLh ln lLs second half cerLaln SLaLe pollcles whlch
Lhe governmenL ls en[olned Lo pursue and promoLe 1he peLlLloners here have noL serlously
underLaken Lo demonsLraLe Lo whaL exLenL or ln whaL manner Lhe sLaLuLe and Lhe
admlnlsLraLlve order Lhey assall colllde wlLh Lhe SLaLe pollcles embodled ln SecLlons 11 13
and 17 1hey have noL ln oLher words dlscharged Lhe burden of proof whlch lles upon Lhem
1hls burden ls heavy enough where Lhe consLlLuLlonal provlslon lnvoked ls relaLlvely speclflc
raLher Lhan absLracL ln characLer and casL ln behavloral or operaLlonal Lerms 1haL burden of
proof becomes of necesslLy heavler where Lhe consLlLuLlonal provlslon lnvoked ls casL as Lhe
second porLlon of ArLlcle ll ls casL ln language descrlpLlve of baslc pollcles or more preclsely
of baslc ob[ecLlves of SLaLe pollcy and Lherefore hlghly generallzed ln Lenor 1he peLlLloners
have noL made Lhelr case even a prlma facle case and we are noL compelled Lo speculaLe
and Lo lmaglne how Lhe leglslaLlon and regulaLlon lmpugned as unconsLlLuLlonal could
posslbly offend Lhe consLlLuLlonal provlslons polnLed Lo by Lhe peLlLloners

1urnlng Lo ArLlcle xlv SecLlon 1 of Lhe 1987 ConsLlLuLlon we noLe LhaL once more peLlLloners
have falled Lo demonsLraLe LhaL Lhe sLaLuLe and regulaLlon Lhey assall ln facL clash wlLh LhaL
provlslon Cn Lhe conLrary we may noLeln anLlclpaLlon of dlscusslon lnfra LhaL Lhe sLaLuLe
and Lhe regulaLlon whlch peLlLloners aLLack are ln facL deslgned Lo promoLe quallLy
educaLlon aL Lhe level of professlonal schools When one reads SecLlon 1 ln relaLlon Lo
SecLlon 3 (3) of ArLlcle xlv as one musL one cannoL buL noLe LhaL Lhe laLLer phrase of SecLlon 1
ls noL Lo be read wlLh absoluLe llLeralness 1he SLaLe ls noL really en[olned Lo Lake approprlaLe
sLeps Lo make quallLy educaLlon accesslble Lo all who mlghL for any number of reasons wlsh
Lo enroll ln a professlonal school buL raLher merely Lo make such educaLlon accesslble Lo all
who quallfy under falr reasonable and equlLable admlsslon and academlc requlremenLs

2 ln Lhe Lrlal courL peLlLloners had made Lhe argumenL LhaL SecLlon 3 (a) and (f) of
8epubllc AcL no 2382 as amended offend agalnsL Lhe consLlLuLlonal prlnclple whlch forblds
Lhe undue delegaLlon of leglslaLlve power by falllng Lo esLabllsh Lhe necessary sLandard Lo be
followed by Lhe delegaLe Lhe 8oard of Medlcal LducaLlon 1he general prlnclple of non
delegaLlon of leglslaLlve power whlch boLh flows from Lhe relnforces Lhe more fundamenLal
rule of Lhe separaLlon and allocaLlon of powers among Lhe Lhree greaL deparLmenLs of
governmenL1 musL be applled wlLh clrcumspecLlon ln respecL of sLaLuLes whlch llke Lhe
Medlcal AcL of 1939 deal wlLh sub[ecLs as obvlously complex and Lechnlcal as medlcal
educaLlon and Lhe pracLlce of medlclne ln our presenL day world Mr !usLlce Laurel sLressed
Lhls polnL 47 years ago ln angaslnan 1ransporLaLlon Co lnc vs 1he ubllc Servlce
Commlsslon 2

Cne Lhlng however ls apparenL ln Lhe developmenL of Lhe prlnclple of separaLlon of powers
and LhaL ls LhaL Lhe maxlm of delegaLus non poLesL delegare or delegaLe poLesLas non poLesL
delegare adopLed Lhls pracLlce (ueleglbus eL ConsueLudlnlls Anglla edlLed by CL Woodblne
?ale unlverslLy ress 1922 vol 2 p 167) buL whlch ls also recognlzed ln prlnclple ln Lhe
8oman Law (d 17183) has been made Lo adapL lLself Lo Lhe complexlLles of modern
governmenL glvlng rlse Lo Lhe adopLlon wlLhln cerLaln llmlLs of Lhe prlnclple of subordlnaLe
leglslaLlon noL only ln Lhe unlLed SLaLes and Lngland buL ln pracLlcally all modern
governmenLs (eople vs 8osenLhal and Csmena 68 hll 318 1939 Accordlngly wlLh Lhe
growlng complexlLy of modern llfe Lhe mulLlpllcaLlon of Lhe sub[ecLs of governmenLal
regulaLlon and Lhe lncreased dlfflculLy of admlnlsLerlng Lhe laws Lhere ls a consLanLly growlng
Lendency Loward Lhe delegaLlon of greaLer power by Lhe leglslaLure and Loward Lhe approval
of Lhe pracLlce by Lhe courLs 3

1he sLandards seL for subordlnaLe leglslaLlon ln Lhe exerclse of rule maklng auLhorlLy by an
admlnlsLraLlve agency llke Lhe 8oard of Medlcal LducaLlon are necessarlly broad and hlghly
absLracL As explalned by Lhen Mr !usLlce lernando ln Ldu v LrlcLa4


1he sLandard may be elLher expressed or lmplled lf Lhe former Lhe nondelegaLlon ob[ecLlon
ls easlly meL 1he sLandard Lhough does noL have Lo be spelled ouL speclflcally lL could be
lmplled from Lhe pollcy and purpose of Lhe acL consldered as a whole ln Lhe 8eflecLor Law
clearly Lhe leglslaLlve ob[ecLlve ls publlc safeLy WhaL ls soughL Lo be aLLalned as ln Calalang v
Wllllams ls safe LranslL upon Lhe roads 3

We belleve and so hold LhaL Lhe necessary sLandards are seL forLh ln SecLlon 1 of Lhe 1939
Medlcal AcL Lhe sLandardlzaLlon and regulaLlon of medlcal educaLlon and ln SecLlon 3 (a)
and 7 of Lhe same AcL Lhe body of Lhe sLaLuLe lLself and LhaL Lhese consldered LogeLher are
sufflclenL compllance wlLh Lhe requlremenLs of Lhe nondelegaLlon prlnclple

3 1he peLlLloners also urge LhaL Lhe nMA1 prescrlbed ln MLCS Crder no 32 s 1983
ls an unfalr unreasonable and lnequlLable requlremenL whlch resulLs ln a denlal of due
process Agaln peLlLloners have falled Lo speclfy [usL whaL facLors or feaLures of Lhe nMA1
render lL unfalr and unreasonable or lnequlLable 1hey appear Lo suggesL LhaL passlng
Lhe nMA1 ls an unnecessary requlremenL when added on Lop of Lhe admlsslon requlremenLs
seL ouL ln SecLlon 7 of Lhe Medlcal AcL of 1939 and oLher admlsslon requlremenLs esLabllshed
by lnLernal regulaLlons of Lhe varlous medlcal schools publlc or prlvaLe eLlLloners
argumenLs Lhus appear Lo relaLe Lo uLlllLy and wlsdom or deslrablllLy of Lhe nMA1
requlremenL 8uL consLlLuLlonallLy ls essenLlally a quesLlon of power or auLhorlLy Lhls CourL
has nelLher commlsslon or compeLence Lo pass upon quesLlons of Lhe deslrablllLy or wlsdom
or uLlllLy of leglslaLlon or admlnlsLraLlve regulaLlon 1hose quesLlons musL be address Lo Lhe
pollLlcal deparLmenLs of Lhe governmenL noL Lo Lhe courLs

1here ls anoLher reason why Lhe peLlLloners argumenLs musL fall Lhe leglslaLlve and
admlnlsLraLlve provlslons lmpugned by Lhem consLlLuLe Lo Lhe mlnd of Lhe CourL a valld
exerclse of Lhe pollce power of Lhe sLaLe 1he pollce power lL ls commonplace learnlng ls Lhe
pervaslve and nonwalvable power and auLhorlLy of Lhe soverelgn Lo secure and promoLe an
Lhe lmporLanL lnLeresLs and needs ln a word Lhe publlc order of Lhe general
communlLy6 An lmporLanL componenL of LhaL publlc order ls Lhe healLh and physlcal safeLy
and well belng of Lhe populaLlon Lhe securlng of whlch no one can deny ls a leglLlmaLe
ob[ecLlve of governmenLal efforL and regulaLlon7

erhaps Lhe only lssue LhaL needs some conslderaLlon ls wheLher Lhere ls some reasonable
relaLlon beLween Lhe prescrlblng of passlng Lhe nMA1 as a condlLlon for admlsslon Lo medlcal
school on Lhe one hand and Lhe securlng of Lhe healLh and safeLy of Lhe general communlLy
on Lhe oLher hand 1hls quesLlon ls perhaps mosL usefully approached by recalllng LhaL Lhe
regulaLlon of Lhe pracLlce of medlclne ln all lLs branches has long been recognlzed as a
reasonable meLhod of proLecLlng Lhe healLh and safeLy of Lhe publlc8 1haL Lhe power Lo
regulaLe and conLrol Lhe pracLlce of medlclne lncludes Lhe power Lo regulaLe admlsslon Lo Lhe
ranks of Lhose auLhorlzed Lo pracLlce medlclne ls also well recognlzed Lhus leglslaLlon and
admlnlsLraLlve regulaLlons requlrlng Lhose who wlsh Lo pracLlce medlclne flrsL Lo Lake and
pass medlcal board examlnaLlons have long ago been recognlzed as valld exerclses of
governmenLal power9 Slmllarly Lhe esLabllshmenL of mlnlmum medlcal educaLlonal
requlremenLs le Lhe compleLlon of prescrlbed courses ln a recognlzed medlcal school
for admlsslon Lo Lhe medlcal professlon has also been susLalned as a leglLlmaLe exerclse of
Lhe regulaLory auLhorlLy of Lhe sLaLe10 WhaL we have before us ln Lhe lnsLanL case ls closely
relaLed Lhe regulaLlon of access Lo medlcal schools MLCS Crder no 32 s 1983 as noLed
earller arLlculaLes Lhe raLlonale of regulaLlon of Lhls Lype Lhe lmprovemenL of Lhe
professlonal and Lechnlcal quallLy of Lhe graduaLes of medlcal schools by upgradlng Lhe
quallLy of Lhose admlLLed Lo Lhe sLudenL body of Lhe medlcal schools 1haL upgradlng ls
soughL by selecLlvlLy ln Lhe process of admlsslon selecLlvlLy conslsLlng among oLher Lhlngs of
llmlLlng admlsslon Lo Lhose who exhlblL ln Lhe requlred degree Lhe apLlLude for medlcal
sLudles and evenLually for medlcal pracLlce 1he need Lo malnLaln and Lhe dlfflculLles of
malnLalnlng hlgh sLandards ln our professlonal schools ln general and medlcal schools ln
parLlcular ln Lhe currenL sLage of our soclal and economlc developmenL are wldely known

We belleve LhaL Lhe governmenL ls enLlLled Lo prescrlbe an admlsslon LesL llke Lhe nMA1 as a
means for achlevlng lLs sLaLed ob[ecLlve of upgradlng Lhe selecLlon of appllcanLs lnLo our
medlcal schools and of lmprovlng Lhe quallLy of medlcal educaLlon ln Lhe counLry Clven
Lhe wldespread use Loday of such admlsslon LesLs ln for lnsLance medlcal schools ln Lhe
unlLed SLaLes of Amerlca (Lhe Medlcal College Admlsslon 1esL MCA111 and qulLe probably
ln oLher counLrles wlLh far more developed educaLlonal resources Lhan our own and Laklng
lnLo accounL Lhe fallure or lnablllLy of Lhe peLlLloners Lo even aLLempL Lo prove oLherwlse we
are enLlLled Lo hold LhaL Lhe nMA1 ls reasonably relaLed Lo Lhe securlng of Lhe ulLlmaLe end of
leglslaLlon and regulaLlon ln Lhls area 1haL end lL ls useful Lo recall ls Lhe proLecLlon of Lhe
publlc from Lhe poLenLlally deadly effecLs of lncompeLence and lgnorance ln Lhose who would
underLake Lo LreaL our bodles and mlnds for dlsease or Lrauma

4 eLlLloners have conLended flnally LhaL MLCS Crder no 32 s 1983 ls ln confllcL
wlLh Lhe equal proLecLlon clause of Lhe ConsLlLuLlon More speclflcally peLlLloners asserL LhaL
LhaL porLlon of Lhe MLCS Crder whlch provldes LhaL

Lhe cuLoff score for Lhe successful appllcanLs based on Lhe scores on Lhe nMA1 shall be
deLermlned everyyear by Lhe 8oard of Medlcal 11 LducaLlon afLer consulLaLlon wlLh Lhe
AssoclaLlon of hlllpplne Medlcal Colleges (Lmphasls supplled)

lnfrlnges Lhe requlremenLs of equal proLecLlon 1hey asserL ln oLher words LhaL sLudenLs
seeklng admlsslon durlng a glven school year eg 19871988 when sub[ecLed Lo a dlfferenL
cuLoff score Lhan LhaL esLabllshed for an eg earller school year are dlscrlmlnaLed agalnsL
and LhaL Lhls renders Lhe MLCS Crder arblLrary and caprlclous 1he force of Lhls argumenL ls
more apparenL Lhan real ulfferenL cuLoff scores for dlfferenL school years may be dlcLaLed by
dlfferlng condlLlons obLalnlng durlng Lhose years 1hus Lhe approprlaLe cuLoff score for a
glven year may be a funcLlon of such facLors as Lhe number of sLudenLs who have reached Lhe
cuLoff score esLabllshed Lhe precedlng year Lhe number of places avallable ln medlcal schools
durlng Lhe currenL year Lhe average score aLLalned durlng Lhe currenL year Lhe level of
dlfflculLy of Lhe LesL glven durlng Lhe currenL year and so forLh 1o esLabllsh a permanenL and
lmmuLable cuLoff score regardless of changes ln clrcumsLances from year Lo year may wen
resulL ln an unreasonable rlgldlLy 1he above language ln MLCS Crder no 32 far from belng
arblLrary or caprlclous leaves Lhe 8oard of Medlcal LducaLlon wlLh Lhe measure of flexlblllLy
needed Lo meeL clrcumsLances as Lhey change

We conclude LhaL prescrlblng Lhe nMA1 and requlrlng cerLaln mlnlmum scores Lhereln as a
condlLlon for admlsslon Lo medlcal schools ln Lhe hlllpplnes do noL consLlLuLe an
unconsLlLuLlonal lmposlLlon

WPL8LlC8L Lhe eLlLlon for cerLlorarl ls ulSMlSSLu and Lhe Crder of Lhe respondenL Lrlal
courL denylng Lhe peLlLlon for a wrlL of prellmlnary ln[uncLlon ls Alll8MLu CosLs agalnsL
peLlLloners

SC C8uL8Lu

1eehankee C! ?ap lernan narvasa MelencloPerrera CuLlerrez !r Cruz aras
Cancayco adllla 8ldln SarmlenLo and CorLes !! concur

Gk No 148S12 Iune 26 2006

CCMMISSICNLk CI IN1LkNAL kLVLNUL et|t|oner
vs
CLN1kAL LU2CN DkUG CCkCkA1ICN kespondent

u L C l S l C n

AZCunA !

1hls ls a peLlLlon for revlew under 8ule 43 of Lhe 8ules of CourL seeklng Lhe nulllflcaLlon of Lhe
ueclslon daLed May 31 2001 of Lhe CourL of Appeals (CA) ln CAC8 S no 60037 enLlLled
CenLral Luzon urug CorporaLlon v Commlssloner of lnLernal 8evenue granLlng hereln
respondenL CenLral Luzon urug CorporaLlon's clalm for Lax credlL equal Lo Lhe amounL of Lhe
20 dlscounL LhaL lL exLended Lo senlor clLlzens on Lhe laLLer's purchase of medlclnes
pursuanL Lo SecLlon 4(a) of 8epubllc AcL (8A) no 7432 enLlLled An AcL Lo Maxlmlze Lhe
ConLrlbuLlon of Senlor ClLlzens Lo naLlon 8ulldlng CranL 8eneflLs and Speclal rlvlleges and
for oLher urposes oLherwlse known as Lhe Senlor ClLlzens AcL

1he anLecedenLs are as follows

CenLral Luzon urug CorporaLlon has been a reLaller of medlclnes and oLher pharmaceuLlcal
producLs slnce uecember 19 1994 ln 1993 lL opened Lhree (3) drugsLores as a franchlsee
under Lhe buslness name and sLyle of Mercury urug

lor Lhe perlod !anuary 1993 Lo uecember 1993 ln conformlLy Lo Lhe mandaLe of Sec 4(a) of
8A no 7432 peLlLloner granLed a 20 dlscounL on Lhe sale of medlclnes Lo quallfled senlor
clLlzens amounLlng Lo 219778

ursuanL Lo 8evenue 8egulaLlons no 2941 lmplemenLlng 8A no 7432 whlch sLaLes LhaL
Lhe dlscounL glven Lo senlor clLlzens shall be deducLed by Lhe esLabllshmenL from lLs gross
sales for valueadded Lax and oLher percenLage Lax purposes respondenL deducLed Lhe LoLal
amounL of 219778 from lLs gross lncome for Lhe Laxable year 1993 lor sald Laxable perlod
respondenL reporLed a neL loss of 20963 ln lLs corporaLe lncome Lax reLurn As a
consequence respondenL dld noL pay lncome Lax for 1993

SubsequenLly on uecember 27 1996 clalmlng LhaL accordlng Lo Sec 4(a) of 8A no 7432
Lhe amounL of 219778 should be applled as a Lax credlL respondenL flled a clalm for refund
ln Lhe amounL of 130193 Lhus

neL Sales 3701480700
Add CosL of 20 ulscounL Lo Senlor ClLlzens 21977800
Cross Sales 3723438300
Less CosL of Sales
Merchandlse lnvenLory beg 123274000
urchases 4114313800
Merchandlse lnvenLory end 832133700 3383662100
Cross roflL 337796400
Mlscellaneous lncome 3901400
1oLal lncome 341697800
CperaLlng Lxpenses 319923000
neL lncome 8efore 1ax 21774800
lncome 1ax (33) 6938300
Less 1ax CredlL
(CosL of 20 ulscounL Lo Senlor ClLlzens) 21977800
lncome 1ax ayable ( 13019300)
lncome 1ax AcLually ald 0
1ax 8efundable/Cverpald lncome 1ax ( 13019300)

As shown above Lhe amounL of 130193 clalmed as a refund represenLs Lhe Lax credlL
allegedly due Lo respondenL under 8A no 7432 Slnce Lhe Commlssloner of lnLernal
8evenue was noL able Lo declde Lhe clalm for refund on Llme2 respondenL flled a eLlLlon
for 8evlew wlLh Lhe CourL of 1ax Appeals (C1A) on March 18 1998

Cn Aprll 24 2000 Lhe C1A dlsmlssed Lhe peLlLlon declarlng LhaL even lf Lhe law LreaLs Lhe
20 sales dlscounLs granLed Lo senlor clLlzens as a Lax credlL Lhe same cannoL apply when
Lhere ls no Lax llablllLy or Lhe amounL of Lhe Lax credlL ls greaLer Lhan Lhe Lax due ln Lhe laLLer
case Lhe Lax credlL wlll only be Lo Lhe exLenL of Lhe Lax llablllLy3 Also no refund can be
granLed as no Lax was erroneously lllegally and acLually collecLed based on Lhe provlslons of
SecLlon 230 now SecLlon 229 of Lhe 1ax Code lurLhermore Lhe law does noL sLaLe LhaL a
refund can be clalmed by Lhe prlvaLe esLabllshmenL concerned as an alLernaLlve Lo Lhe Lax
credlL

1hus respondenL flled wlLh Lhe CA a eLlLlon for 8evlew on AugusL 3 2000

Cn May 31 2001 Lhe CA rendered a ueclslon sLaLlng LhaL SecLlon 229 of Lhe 1ax Code does
noL apply ln Lhls case lL concluded LhaL Lhe 20 dlscounL glven Lo senlor clLlzens whlch ls
LreaLed as a Lax credlL pursuanL Lo Sec 4(a) of 8A no 7432 ls consldered [usL compensaLlon
and as such may be carrled over Lo Lhe nexL Laxable perlod lf Lhere ls no currenL Lax llablllLy
ln vlew of Lhls Lhe CA held

WPL8LlC8L Lhe lnsLanL peLlLlon ls hereby C8An1Lu and Lhe declslon of Lhe C1A daLed 24
Aprll 2000 and lLs resoluLlon daLed 06 !uly 2000 are SL1 ASluL A new one ls enLered granLlng
peLlLloner's clalm for Lax credlL ln Lhe amounL of hp 13019300 no cosLs

SC C8uL8Lu4

Pence Lhls peLlLlon ralslng Lhe sole lssue of wheLher Lhe 20 sales dlscounL granLed by
respondenL Lo quallfled senlor clLlzens pursuanL Lo Sec 4(a) of 8A no 7432 may be clalmed
as a Lax credlL or as a deducLlon from gross sales ln accordance wlLh Sec 2(1) of 8evenue
8egulaLlons no 294



Sec 4(a) of 8A no 7432 provldes

Sec 4 rlvlleges for Lhe Senlor clLlzens 1he senlor clLlzens shall be enLlLled Lo Lhe followlng

(a) Lhe granL of LwenLy percenL (20) dlscounL from all esLabllshmenLs relaLlve Lo uLlllzaLlon
of LransporLaLlons servlces hoLels and slmllar lodglng esLabllshmenLs resLauranLs and
recreaLlon cenLers and purchase of medlclnes anywhere ln Lhe counLry rovlded 1haL
prlvaLe esLabllshmenLs may clalm Lhe cosL as Lax credlL

1he CA and Lhe C1A correcLly ruled LhaL based on Lhe plaln wordlng of Lhe law dlscounLs glven
under 8A no 7432 should be LreaLed as Lax credlLs noL deducLlons from lncome

lL ls a fundamenLal rule ln sLaLuLory consLrucLlon LhaL Lhe leglslaLlve lnLenL musL be
deLermlned from Lhe language of Lhe sLaLuLe lLself especlally when Lhe words and phrases
Lhereln are clear and unequlvocal 1he sLaLuLe ln such a case musL be Laken Lo mean exacLly
whaL lL says3 lLs llLeral meanlng should be followed6 Lo deparL from Lhe meanlng expressed
by Lhe words ls Lo alLer Lhe sLaLuLe7

1he above provlslon expllclLly employed Lhe word Lax credlL noLhlng ln Lhe provlslon
suggesLs for lL Lo mean a deducLlon from gross sales 1o consLrue lL oLherwlse would be a
deparLure from Lhe clear mandaLe of Lhe law

1hus Lhe 20 dlscounL requlred by Lhe AcL Lo be glven Lo senlor clLlzens ls a Lax credlL noL a
deducLlon from Lhe gross sales of Lhe esLabllshmenL concerned As a corollary Lo Lhls Lhe
deflnlLlon of 'Lax credlL' found ln SecLlon 2(1) of 8evenue 8egulaLlons no 294 ls erroneous as
lL refers Lo Lax credlL as Lhe amounL represenLlng Lhe 20 dlscounL LhaL shall be deducLed by
Lhe sald esLabllshmenL from Lhelr gross sales for value added Lax and oLher percenLage Lax
purposes 1hls deflnlLlon ls conLrary Lo whaL our lawmakers had envlsloned wlLh regard Lo
Lhe LreaLmenL of Lhe dlscounL granLed Lo senlor clLlzens

Accordlngly when Lhe law says LhaL Lhe cosL of Lhe dlscounL may be clalmed as a Lax credlL lL
means LhaL Lhe amounL when clalmed shall be LreaLed as a reducLlon from any Lax
llablllLy8 1he law cannoL be amended by a mere regulaLlon 1he admlnlsLraLlve agencles
lssulng Lhese regulaLlons may noL enlarge alLer or resLrlcL Lhe provlslons of Lhe law Lhey
admlnlsLer9 ln facL a regulaLlon LhaL operaLes Lo creaLe a rule ouL of harmony wlLh Lhe
sLaLuLe ls a mere nulllLy10

llnally for purposes of clarlLy Sec 22911 of Lhe 1ax Code does noL apply Lo cases LhaL fall
under Sec 4 of 8A no 7432 because Lhe former provlslon governs excluslvely all klnds of
refund or credlL of lnLernal revenue Laxes LhaL were erroneously or lllegally lmposed and
collecLed pursuanL Lo Lhe 1ax Code whlle Lhe laLLer exLends Lhe Lax credlL beneflL Lo Lhe
prlvaLe esLabllshmenLs concerned even before Lax paymenLs have been made 1he Lax credlL
LhaL ls conLemplaLed under Lhe AcL ls a form of [usL compensaLlon noL a remedy for Laxes
LhaL were erroneously or lllegally assessed and collecLed ln Lhe same veln prlor paymenL of
any Lax llablllLy ls noL a precondlLlon before a Laxable enLlLy can beneflL from Lhe Lax credlL
1he credlL may be avalled of upon paymenL of Lhe Lax due lf any Where Lhere ls no Lax
llablllLy or where a prlvaLe esLabllshmenL reporLs a neL loss for Lhe perlod Lhe Lax credlL can
be avalled of and carrled over Lo Lhe nexL Laxable year

lL musL also be sLressed LhaL unllke ln Sec 229 of Lhe 1ax Code whereln Lhe remedy of refund
ls avallable Lo Lhe Laxpayer Sec 4 of Lhe law speaks only of a Lax credlL noL a refund

As earller menLloned Lhe Lax credlL beneflL granLed Lo Lhe esLabllshmenLs can be deemed as
Lhelr [usL compensaLlon for prlvaLe properLy Laken by Lhe SLaLe for publlc use 1he prlvllege
en[oyed by Lhe senlor clLlzens does noL come dlrecLly from Lhe SLaLe buL raLher from Lhe
prlvaLe esLabllshmenLs concerned12

WPL8LlC8L Lhe peLlLlon ls uLnlLu 1he ueclslon of Lhe CourL of Appeals ln CAC8 S no
60037 daLed May 31 2001 ls Alll8MLu

no pronouncemenL as Lo cosLs

SC C8uL8Lu

AuCLlC S AZCunA
AssoclaLe !usLlce