Ericta vs. City Government of Quezon City
Content
CITY GOVERNMENT OF QUEZON CITY and CITY COUNCIL OF QUEZON CITY, petitioners, vs. HON. U!GE VICENTE G. ERICT" as #d$e o% t&e Co#rt o% First Instan'e o% Ri(a), Q#e(on Cit*, +ran'& VIII- HIML"Y"NG ILIINO, INC., respondents. 1983-06-24 | G.R. No. L-34915 !ECI/ION GUTIERREZ, R., .0 This is a petition for review whih see!s the reversa" of the #eision of the $o%rt of &irst 'nstane of Ri(a") *ranh +,''' #e"arin etion 9 of /r#inane No. 6118) 6118) -64) of the %e(on $it $o%ni" n%"" an# voi#. etion 9 of /r#inane No. 6118) -64) entit"e# /R'NN$ RGLT'NG T7 T*L'7NT) 'NTNN$ N /RT'/N /& R',T /R'L T: $TR: /R *R'L GR/N ;'T7'N T7 <R''$T'/N /& =/N $'T: N R/,''NG NLT' &/R T7 ,'/LT'/N T7R/& provi#es> e. 9. t "east si? @6A perent of the tota" area of the BeBoria" par! eBeter sha"" Ce set asi#e for harit C%ria" of #eease# persons who are pa%pers an# have Ceen resi#ents of %e(on $it for at "east 5 ears prior to their #eath) to Ce #eterBine# C oBpetent $it %thorities. The area so #esinate# sha"" iBBe#iate" Ce #eve"ope# an# sho%"# Ce open for operation not "ater than si? Bonths froB the #ate of approva" of the app"iation. app"iation. &or severa" ears) the aforeD%ote# setion of the /r#inane was not enfore# C it a%thorities C%t seven ears after the enatBent of the or#inane) the %e(on $it $o%ni" passe# the fo""owin reso"%tion> R/L, C the o%ni" of %e(on asseBC"e#) to reD%est) as it #oes hereC reD%est the $it nineer) %e(on $it) to stop an f%rther se""in an#Eor transation of BeBoria" par! "ots in %e(on $it where the owners thereof have fai"e# f ai"e# to #onate the reD%ire# 6F spae inten#e# for pa%pers C%ria". %rs%ant to this petition) the %e(on $it nineer notifie# respon#ent 7iB"aan 7iB"aan i"ipino) 'n. in writin that etion 9 of /r#inane No. 6118) -64 wo%"# Ce enfore#. Respon#ent 7iB"aan i"ipino reate# C fi"in with the $o%rt of &irst 'nstane of Ri(a") *ranh +,''' at %e(on $it) a petition for #e"arator re"ief) prohiCition an# Ban#aB%s with pre"iBinar in%ntion @p. ro. No. -16002A see!in to ann%" etion 9 of the /r#inane in D%estion. The respon#ent a""ee# that the saBe is ontrar to the $onstit%tion) the %e(on $it $harter) the Loa" %tonoB t) an# the Revise# #Binistrative $o#e. There Cein no iss%e of fat an# the D%estions raise# Cein p%re" "ea") Coth petitioners an# respon#ent aree# to the ren#ition of a %#Bent on the p"ea#ins. The respon#ent o%rt) therefore) ren#ere# the #eision #e"arin etion 9 of /r#inane No. 6118) -64 n%"" an# voi#. Botion for reonsi#eration reonsi#eration havin Ceen #enie#) the $it GovernBent an# $it $o%ni" fi"e# the instant petition. etitioners ar%e that the ta!in of the respon#entHs propert is a va"i# an# reasonaC"e e?erise e?erise of po"ie
power an# that the "an# is ta!en for a p%C"i %se as it is inten#e# for the C%ria" ro%n# of pa%pers. The f%rther ar%e that the %e(on $it $o%ni" is a%thori(e# %n#er its harter) in the e?erise of "oa" po"ie power) to Ba!e s%h f%rther or#inanes an# reso"%tions not rep%nant to "aw as Ba Ce neessar to arr into effet an# #ishare the powers an# #%ties onferre# C this t an# s%h as it sha"" #eeB neessar an# proper to provi#e for the hea"th an# safet) proBote the prosperit) iBprove the Bora"s) peae) oo# or#er) oBfort an# onveniene of the it an# the inhaCitants thereof) an# for the protetion of propert therein. t herein. /n the other han#) respon#ent 7iB"aan i"ipino) 'n. onten#s that the ta!in or onfisation of propert is oCvio%s Cea%se the D%estione# or#inane perBanent" restrits the %se of the propert s%h that it annot Ce %se# for an reasonaC"e p%rpose an# #eprives the owner of a"" Cenefiia" %se of his propert. The respon#ent a"so stresses that the enera" we"fare "a%se is not avai"aC"e as a so%re of power for the ta!in of the propert in this ase Cea%se it refers to the power of proBotin the p%C"i we"fare C restrainin an# re%"atin the %se of "iCert an# propert. The respon#ent points o%t that if an owner is #eprive# of his propert o%triht %n#er the tateHs po"ie power) the propert is enera"" not ta!en for p%C"i %se C%t is %rent" an# s%BBari" #estroe# in or#er to proBote the enera" we"fare. The respon#ent ites the ase of a n%isane per se or the #estr%tion of a ho%se to prevent the sprea# of a onf"aration. ;e fin# the stan# of the private respon#ent as we"" as the #eision of the respon#ent <%#e to Ce we""-fo%n#e#. ;e D%ote with approva" the "ower o%rtHs r%"in whih #e"are# n%"" an# voi# etion 9 of the D%estione# it or#inane> The iss%e is> 's etion 9 of the or#inane in D%estion a va"i# e?erise of the po"ie powerI n e?aBination of the $harter of %e(on $it @Rep. t No. 53J1A) #oes not revea" an provision that wo%"# %stif the or#inane in D%estion e?ept the provision rantin po"ie power to the $it. etion 9 annot Ce %stifie# %n#er the power rante# to %e(on $it to ta?) fi? the "iense fee) an# re%"ate s%h other C%siness) tra#es) an# o%pation as Ba Ce estaC"ishe# or pratie# in the $it.H $it.H @%C-setions H$H) e. 12) R.. 53JA. The power to re%"ate #oes not in"%#e the power to prohiCit @eop"e vs. s%erra) 81 hi". 33) ,ea vs. %niipa" *oar# of '"oi"o) L-6J65) a 12) 1954K 39 N.<. Law) J0) ih. 396A. fortiori) the power to re%"ate #oes not in"%#e the power to onfisate. The or#inane in D%estion not on" onfisates C%t a"so prohiCits the operation of a BeBoria" par! eBeter) Cea%se %n#er etion 13 of sai# or#inane) H,io"ation of the provision thereof is p%nishaC"e with a fine an#Eor iBprisonBent an# that %pon onvition thereof the perBit to operate an# Baintain a private eBeter sha"" Ce revo!e# or ane""e#.H The onfisator "a%se an# the pena" provision in effet #eter one froB operatin a BeBoria" par! eBeter. eBeter. Neither an the or#inane in D%estion Ce %stifie# %n#er s%C-setion HtH) etion 12 of Rep%C"i t 53J whih a%thori(es the $it $o%ni" to HprohiCit the C%ria" of the #ea# within the enter of pop%"ation of the it an# provi#e for their C%ria" in s%h proper p"ae an# in s%h Banner as the o%ni" Ba #eterBine) s%Cet to the provisions of the enera" "aw re%"atin C%ria" ro%n#s an# eBeteries an# overnin f%nera"s an# #isposa" of the #ea#.H@%C-se.. @tA) e. 12) Rep. t No. 53JA. #ea#.H@%C-se There is nothin in the aCove provision whih a%thori(es onfisation or as e%pheBistia"" terBe# C the respon#ents) H#onation.H
;e now oBe to the D%estion whether or not etion 9 of the or#inane in D%estion is a va"i# e?erise of po"ie power. The po"ie power of %e(on $it is #efine# in s%C-setion 00) e. 12) Rep. t 53J whih rea#s as fo""ows> @00A To Ba!e s%h f%rther or#inane an# re%"ations not rep%nant to "aw as Ba Ce neessar to arr into effet an# #ishare the powers an# #%ties onferre# C this at an# s%h as it sha"" #eeB neessar an# proper to provi#e for the hea"th an# safet) proBote) the prosperit) iBprove the Bora"s) peae) oo# or#er) oBfort an# onveniene of the it an# the inhaCitants thereof) an# for the protetion of propert thereinK an# enfore oCe#iene thereto with s%h "awf%" fines or pena"ties as the $it $o%ni" Ba presriCe %n#er the provisions of s%Csetion @A of this setion.H ;e start the #is%ssion with a restateBent of ertain Casi prinip"es. /%pin the forefront in the Ci"" of rihts is the provision whih states that Hno person sha"" Ce #eprive# of "ife) "iCert or propert witho%t #%e proess of "awH @rt. ''') etion 1 s%Cpararaph 1) $onstit%tionA. /n the other han#) there t here are three inherent powers of overnBent C whih the state interferes with tthe he propert rihts) naBe" @1A po"ie power) @2A eBinent #oBain) @3A ta?ation. These are sai# to e?ist in#epen#ent" in#epen#en t" of the $onstit%tion as neessar attriC%tes of sovereint. o"ie power is #efine# C &re%n# as Hthe power of proBotin the p%C"i we"fare C restrainin an# re%"atin the %se of "iCert an# propertH @%ote# in o"itia" Law C Taa#a an# $arreon) ,-'') p. 50A. 't is %s%a"" e?erte# in or#er to Bere" re%"ate the %se an# enoBent of propert of the owner. 'f he is #eprive# of his propert o%triht) it is not ta!en for p%C"i %se C%t rather to #estro in or#er to proBote the enera" we"fare. 'n po"ie power) the owner #oes not reover froB the overnBent for in%r s%staine# in onseD%ene thereof. @12 $.<. 623A. 't has Ceen sai# that po"ie power is the Bost essentia" of overnBent powers) at tiBes the Bost insistent) an# a"was one of the "east "iBitaC"e of the powers of overnBent @R%C vs. rovinia" *oar#) 39 hi". 660K 'hon vs. 7ernan#e() L-J995) a 31) 195JA. This power eBCraes the who"e ssteB of p%C"i re%"ation @.. vs. Lins%a &an) 10 hi". 104A. The %preBe $o%rt has sai# that po"ie power is so far-reahin in sope that it has a"Bost CeoBe iBpossiC"e to "iBit its sweep. s it #erives its e?istene froB the ver e?istene of the state itse"f) it #oes not nee# to Ce e?presse# or #efine# in its sope. *ein oe?tensive with se"f-preservation an# s%rviva" itse"f) it is the Bost positive an# ative of a"" overnBenta" proesses) the Bost essentia") insistent an# i""iBitaC"e. speia"" it is so %n#er the Bo#ern #eBorati fraBewo fraBewor! r! where the #eBan#s of soiet an# nations have B%"tip"ie# to a"Bost %niBainaC"e proportions. The fie"# an# sope of po"ie power have CeoBe a"Bost Co%n#"ess) %st as the fie"#s of p%C"i interest an# p%C"i we"fare have CeoBe a"Bost a"" eBCrain an# have transen#e# h%Ban foresiht. ine the $o%rts annot foresee the nee#s an# #eBan#s of p%C"i interest an# we"fare) the annot #e"iBit Ceforehan# the e?tent or sope of the po"ie power C whih an# thro%h whih the state see!s to attain or ahieve p%C"i interest an# we"fare. @'hon vs. 7ernan#e() L-J995) a 31) 195JA. The po"ie power Cein the Bost ative power of the overnBent an# the #%e proess "a%se Cein the Croa#est "iBitation on overnBenta" power) the onf"it Cetween this power of overnBent an# the #%e proess "a%se of the $onstit%tion is oftentiBes inevitaC"e. inevitaC"e. 't wi"" Ce seen froB the foreoin a%thorities that po"ie power is %s%a"" e?erise# in the forB of Bere re%"ation or restrition in the %se of "iCert or propert for the proBotion of the enera" we"fare. 't #oes not invo"ve the ta!in or onfisation of propert with the e?eption of a few ases where there is a neessit to onfisate private propert in or#er to #estro it for the p%rpose of protetin the peae an# or#er an# of proBotin the enera" we"fare as for instane) the onfisation of an i""ea"" possesse# arti"e) s%h as opi%B an# firearBs.
't seeBs to the o%rt that etion 9 of /r#inane No. 6118 6118)) eries of 1964 of %e(on $it is not a Bere po"ie re%"ation C%t an o%triht onfisation. 't #eprives a person of his private propert witho%t #%e proess of "aw) na) even witho%t oBpensation. 'n s%stainin the #eision of the respon#ent o%rt) we are not %nBin#f%" of the heav C%r#en sho%"#ere# C whoever ha""enes the va"i#it of #%" enate# "eis"ation) whether nationa" or "oa". s ear" as 1913) this $o%rt r%"e# in $ase v. *oar# of 7ea"th @24 hi". 250A that the o%rts reso"ve ever pres%Bption in favor of va"i#it an#) Bore 90) where the B%niipa" orpora orporation tion asserts that the t he or#inane was enate# to proBote the oBBon oo# an# enera" we"fare. 'n the "ea#in ase of rBita-a"ate 7ote" an# ote" /perators ssoiation 'n. v. $it aor of ani"a @20 $R 849A the $o%rt spea!in thro%h the then ssoiate <%stie an# now $hief <%stie nriD%e . &ernan#o state#> riBari" what a""s for a reversa" of s%h a #eision is the aCsene of an evi#ene to offset the pres%Bption of va"i#it that attahes to a ha""ene# stat%te or or#inane. s was e?presse# ateoria"" C <%stie a"o"B> HThe pres%Bption is a"" in favor of va"i#it. . . . The ation of the e"ete# representatives of the peop"e annot Ce "iht" set asi#e. The o%ni"ors B%st) in the ver nat%re of thins) Ce faBi"iar with the neessities of their parti%"ar B%niipa"it an# with a"" the fats an# ir%Bstanes whih s%rro%n# the s%Cet an# neessitate ation. The "oa" "eis"ative Co#) C enatin the or#inane) has in effet iven notie that the re%"ations are essentia" to the we""-Cein of the peop"e. . . . The <%#iiar sho%"# not "iht" set asi#e "eis"ative ation when there is not a "ear invasion of persona" or propert rihts %n#er the %ise of po"ie re%"ation.H @.. v. a"averia M1918) 39 hi". 102) at p. 111. There was an affirBation of the pres%Bption of va"i#it of B%niipa" or#inane as anno%ne# in the "ea#in a"averia #eision in Coa v. aet) M1950 85 hi". 369.A. ;e have "i!ewise onsi#ere# the prinip"es ear"ier state# in $ase v. *oar# of 7ea"th s%pra> . . . n#er the provisions of B%niipa" harters whih are !nown as the enera" we"fare "a%ses) a it) C virt%e of its po"ie power) Ba a#opt or#inanes to se%re the peae) safet) hea"th) Bora"s an# the Cest an# hihest interests of the B%niipa"it. 't is a we""-sett"e# prinip"e) rowin o%t of the nat%re of we""-or#ere# an# ivi"i(e# soiet) that ever ho"#er of propert) however aCso"%te an# %nD%a"ifie# Ba Ce his tit"e) ho"#s it %n#er the iBp"ie# "iaCi"it that his %se of it sha"" not Ce in%rio%s to the eD%a" enoBent of others havin an eD%a" riht to the enoBent of their propert) nor in%rio%s to the rihts of the oBB%nit. "" propert in the state is he"# s%Cet to its enera" re%"ations) whih are neessar to the oBBon oo# an# enera" we"fare. Rihts of propert) "i!e a"" other soia" an# onventiona" rihts) are s%Cet to s%h reasonaC"e "iBitations in their enoBent as sha"" prevent theB froB Cein in%rio%s) an# to s%h reasonaC"e restraints an# re%"ations) estaC"ishe# C "aw) as the "eis"at%re) %n#er the overnin an# ontro""in power veste# in theB C the onstit%tion) Ba thin! neessar an# e?pe#ient. The state) %n#er the po"ie power) is possesse# with p"enar power to #ea" with a"" Batters re"atin to the enera" hea"th) Bora"s) an# safet of the peop"e) so "on as it #oes not ontravene an positive inhiCitio inhiCition n of the orani "aw an# provi#in that s%h power is not e?erise# in s%h a Banner as to %stif the interferene of the o%rts to prevent positive wron an# oppression.
C%t fin# theB not app"iaC"e to the fats of this ase. There is no reasonaC"e re"ation Cetween the settin asi#e of at "east si? @6A perent of the tota" area of a"" private eBeteries for harit C%ria" ro%n#s of #eease# pa%pers an# the proBotion of hea"th) Bora"s) oo# or#er) safet) or the enera" we"fare of the peop"e. The or#inane is at%a"" a ta!in witho%t oBpensation of a ertain area froB a private eBeter to Cenefit pa%pers who are hares of the
B%niipa" orporation. 'nstea# of C%i"#in or Baintainin a p%C"i eBeter for this p%rpose) the it passes the C%r#en to private eBeteries. The e?propriation witho%t oBpensation of a portion of private eBeteries is not overe# C etion 12@tA of Rep%C"i t 53J) the Revise# $harter of %e(on $it whih eBpowers the it o%ni" to prohiCit the C%ria" of the #ea# within the enter of pop%"ation of the it an# to provi#e for their C%ria" in a proper p"ae s%Cet to the provisions of enera" "aw re%"atin C%ria" ro%n#s an# eBeteries. ;hen the Loa" GovernBent $o#e) *atas aBCansa *". 33J provi#es in etion 1JJ @DA that a an%nian pan"%nso# Ba provi#e for the C%ria" of the #ea# in s%h p"ae an# in s%h Banner as presriCe# C "aw or or#inane it siBp" a%thori(es the it to provi#e its own it owne# "an# or to C% or e?propriate private properties to onstr%t p%C"i eBeteries. This has Ceen the "aw an# pratie in the past. 't ontin%es to the present. ?propriation) however) reD%ires paBent of %st oBpensation. The D%estione# or#inane or#inane is #ifferent froB "aws an# re%"ations reD%irin owners of s%C#ivisions to set asi#e ertain areas for streets) par!s) p"aro%n#s) an# other p%C"i fai"ities froB the "an# the se"" to C%ers of s%C#ivision "ots. The neessities of p%C"i safet) hea"th) an# onveniene are ver "ear froB sai# reD%ireBents whih are inten#e# to ins%re the #eve"opBent of oBB%nities with sa"%Crio%s an# who"esoBe environBents. environBents. The Cenefiiaries of the re%"ation) in t%rn) are Ba#e to pa C the s%C#ivision #eve"oper when in#ivi#%a" "ots are so"# to hoBeowners. s a Batter of fat) the petitioners re" so"e" on the enera" we"fare "a%se or on iBp"ie# powers of the B%niipa" orporation) not on an e?press provision of "aw as stat%tor Casis of their e?erise of power. The "a%se has a"was reeive# Croa# an# "iCera" interpretation C%t we annot streth it to over this parti%"ar ta!in. oreover) the D%estione# or#inane was passe# after 7iB"aan i"ipino) 'n. ha# inorporate#)) reeive# neessar "ienses an# perBits) an# oBBene# operatin. The seD%estration of inorporate# si? perent of the eBeter annot even Ce onsi#ere# as havin Ceen iBp"ie#" a!now"e#e# C the private respon#ent when it aepte# the perBits to oBBene operations. operations. 1HEREFORE ) the petition for review is hereC !I/MI//E! 1HEREFORE) !I/MI//E!.. The #eision of the respon#ent o%rt is affirBe#. /O OR!ERE!. OR!ERE!. Teehan!ee @$hairBanA) e"enio-7errera) "ana) ,asD%e( an# Re"ova) <<.) on%r.
