001.tan V Comelec

6/19/2016 G.R.No.
180050

RepublicofthePhilippines
SupremeCourt
Manila

ENBANC

RODOLFO G. NAVARRO, G.R.No.180050
VICTORF.BERNAL,and Present:
RENEO.MEDINA,
Petitioners, PUNO,C.J.,
CARPIO,
CORONA,
versus CARPIOMORALES,
VELASCO,JR.,
NACHURA,
EXECUTIVE SECRETARY LEONARDODECASTRO,
EDUARDO ERMITA, representing BRION,
the President of the Philippines PERALTA,
Senate of the Philippines, BERSAMIN,
represented by the SENATE DELCASTILLO,
PRESIDENT House of ABAD,
Representatives, represented by the VILLARAMA,JR.,
HOUSE SPEAKER GOVERNOR PEREZ,and
ROBERT ACE S. BARBERS, MENDOZA,JJ.
representing the mother province of
Surigao del Norte GOVERNOR Promulgated:
GERALDINE ECLEO
VILLAROMAN, representing the February10,2010
newProvinceofDinagatIslands,
Respondents.
xx

DECISION

PERALTA,J.:

ThisisapetitionforcertiorariunderRule65oftheRulesofCourtseekingtonullifyRepublic
Act(R.A.)No.9355,otherwiseknownasAnActCreatingtheProvinceofDinagatIslands,for
beingunconstitutional.
http://sc.judiciary.gov.ph/jurisprudence/2010/february2010/180050.htm 1/25
6/19/2016 G.R.No.180050

PetitionersRodolfoG.Navarro,VictorF.Bernal,andReneO.Medinaaverthattheyare
taxpayersandresidentsoftheProvinceofSurigaodelNorte.TheyhaveservedtheProvinceof
SurigaodelNorteonceasViceGovernorandmembersoftheProvincialBoard,respectively.
They claim to have previously filed a similar petition, which was dismissed on technical
[1]
grounds. They allege that the creation of the Dinagat Islands as a new province, if
uncorrected,perpetuatesanillegalactofCongress,andunjustlydeprivesthepeopleofSurigao
delNorteofalargechunkofitsterritory,InternalRevenueAllocationandrichresourcesfrom
thearea.

Thefactsareasfollows:

The mother province of Surigao del Norte was created and established under R.A. No.
2786 on June 19, 1960. The province is composed of three main groups of islands: (1) the
MainlandandSurigaoCity(2)SiargaoIslandandBucasGrandeand(3)DinagatIsland,which
iscomposedofsevenmunicipalities,namely,Basilisa,Cagdianao,Dinagat,Libjo,Loreto,San
Jose,andTubajon.
Basedontheofficial2000CensusofPopulationandHousingconductedbytheNational
[2]
Statistics Office (NSO), the population of the Province of Surigao del Norte as of May 1,
2000was481,416,brokendownasfollows:

Mainland281,111
SurigaoCity118,534
SiargaoIsland&BucasGrande93,354
DinagatIsland106,951
UnderSection461ofR.A.No.7610,otherwiseknownasTheLocalGovernmentCode,a
provincemaybecreatedifithasanaverageannualincomeofnotlessthanP20millionbased
on1991constantpricesascertifiedbytheDepartmentofFinance,andapopulationofnotless
than 250,000 inhabitants as certified by the NSO, or a contiguous territory of at least 2,000
square kilometers as certified by the Lands Management Bureau. The territory need not be
contiguousifitcomprisestwoormoreislandsorisseparatedbyacharteredcityorcities,which
donotcontributetotheincomeoftheprovince.

OnApril3,2002,theOfficeofthePresident,throughitsDeputyExecutiveSecretaryfor
LegalAffairs,advisedtheSangguniangPanlalawiganoftheProvinceofSurigaodelNorteof
6/19/2016 G.R.No.180050
[3]
thedeficientpopulationintheproposedProvinceofDinagatIslands.

InJuly2003,theProvincialGovernmentofSurigaodelNorteconductedaspecialcensus,
withtheassistanceofanNSODistrictCensusCoordinator,intheDinagatIslandstodetermine
itsactualpopulationinsupportofthehousebillcreatingtheProvinceofDinagatIslands.The
specialcensusyieldedapopulationcountof371,576inhabitantsintheproposedprovince.The
NSO, however, did not certify the result of the special census. On July 30, 2003, Surigao del
Norte Provincial Governor Robert Lyndon S. Barbers issued Proclamation No. 01, which
declared as official, for all purposes, the 2003 Special Census in Dinagat Islands showing a
[4]
populationof371,576.
TheBureauofLocalGovernmentFinancecertifiedthattheaverageannualincomeofthe
proposed Province of Dinagat Islands for calendar year 2002 to 2003 based on the 1991
constantpriceswasP82,696,433.23.The land area of the proposed province is 802.12 square
kilometers.
OnAugust14,2006andAugust28,2006,theSenateandtheHouseofRepresentatives,
respectively, passed the bill creating the Province of Dinagat Islands. It was approved and
enactedintolawasR.A.No.9355onOctober2,2006byPresidentGloriaMacapagalArroyo.

OnDecember2,2006,aplebiscitewasheldinthemotherProvinceofSurigaodelNorte
todeterminewhetherthelocalgovernmentunitsdirectlyaffectedapprovedofthecreationofthe
Province of Dinagat Islands into a distinct and independent province comprising the
municipalities of Basilisa, Cagdianao, Dinagat, Libjo (Albor), Loreto, San Jose, and Tubajon.
[5]
Theresultoftheplebisciteyielded69,943affirmativevotesand63,502negativevotes.

OnDecember3,2006,thePlebisciteProvincialBoardofCanvassersproclaimedthatthe
creationofDinagatIslands into a separate and distinct province was ratified and approved by
[6]
themajorityofthevotescastintheplebiscite.

OnJanuary26,2007,anewsetofprovincialofficialstooktheiroathofofficefollowing
their appointment by President Gloria MacapagalArroyo. Another set of provincial officials
waselectedduringthesynchronizednationalandlocalelectionsheldonMay14,2007.OnJuly
1,2007,theelectedprovincialofficialstooktheiroathofofficehence,theProvinceofDinagat
6/19/2016 G.R.No.180050
[7]
Islandsbeganitscorporateexistence.

PetitionerscontendedthatthecreationoftheProvinceofDinagatIslandsunderR.A.No.
9355isnotvalidbecauseitfailedtocomplywitheitherthepopulationorlandarearequirement
prescribedbytheLocalGovernmentCode.
Petitioners prayed that R.A. No. 9355 be declared unconstitutional, and that all
subsequent appointments and elections to the new vacant positions in the newly created
Province of Dinagat Islands be declared null and void. They also prayed for the return of the
municipalities of the Province of Dinagat Islands and the return of the former districts to the
motherProvinceofSurigaodelNorte.
Petitionersraisedthefollowingissues:

I
WHETHER OR NOT REPUBLIC ACT NO. 9355, CREATING THE NEW PROVINCE OF
DINAGAT ISLANDS, COMPLIED WITH THE CONSTITUTION AND STATUTORY
REQUIREMENTS UNDER SECTION 461 OF REPUBLIC ACT NO. 7160, OTHERWISE
KNOWNASTHELOCALGOVERNMENTCODEOF1991.

II
WHETHER OR NOT THE CREATION OF DINAGAT AS A NEW PROVINCE BY THE
RESPONDENTSISANACTOFGERRYMANDERING.

III
WHETHER OR NOT THE RESULT OF THE PLEBISCITE IS CREDIBLE AND TRULY
[8]
REFLECTSTHEMANDATEOFTHEPEOPLE.

In her Memorandum, respondent Governor Geraldine B. EcleoVillaroman of the
ProvinceofDinagatIslandsraisesproceduralissues.Shecontendsthatpetitionersdonothave
the legal standing to question the constitutionality of the creation of the Province of Dinagat,
sincetheyhavenotbeendirectlyinjuredbyitscreationandarewithoutsubstantialinterestover
thematterincontroversy.Moreover,sheallegesthatthepetitionismootandacademicbecause
the existence of the Province of Dinagat Islands has already commenced hence, the petition
shouldbedismissed.

Thecontentioniswithoutmerit.
6/19/2016 G.R.No.180050

[9]
In Coconut Oil Refiners Association, Inc. v. Torres, the Court held that in cases of
paramount importance where serious constitutional questions are involved, the standing
requirementsmayberelaxedandasuitmaybeallowedtoprosperevenwherethereisnodirect
injurytothepartyclaimingtherightofjudicialreview.Inthesamevein,withrespecttoother
allegedproceduralflaws,evenassumingtheexistenceofsuchdefects,theCourt,intheexercise
of its discretion, brushes aside these technicalities and takes cognizance of the petition
consideringitsimportanceandinkeepingwiththedutytodeterminewhethertheotherbranches
[10]
ofthegovernmenthavekeptthemselveswithinthelimitsoftheConstitution.
Further, supervening events, whether intended or accidental, cannot prevent the Court
[11]
fromrenderingadecisionifthereisagraveviolationoftheConstitution. The courts will
decideaquestionotherwisemootandacademicifitiscapableofrepetition,yetevadingreview.
[12]

The main issue is whether or not R.A. No. 9355 violates Section 10,Article X of the
Constitution.

Petitioners contend that the proposed Province of Dinagat Islands is not qualified to
becomeaprovincebecauseitfailedtocomplywiththelandareaorthepopulationrequirement,
despite its compliance with the income requirement. It has a total land area of only 802.12
square kilometers, which falls short of the statutory requirement of at least 2,000 square
kilometers.Moreover,basedontheNSO2000CensusofPopulation,thetotalpopulationofthe
proposed Province of Dinagat Islands is only 106,951, while the statutory requirement is a
populationofatleast250,000inhabitants.

PetitionersallegethatinenactingR.A.No.9355intolaw,theHouseofRepresentatives
and the Senate erroneously relied on paragraph 2 of Article 9 of the Rules and Regulations
Implementing the Local Government Code of 1991, which states that [t]he land area
requirement shall not apply where the proposed province is composed of one (1) or more
[13]
islands. The preceding italicized provision contained in the Implementing Rules and
Regulationsisnotexpresslyorimpliedlystatedasanexemptiontothelandarearequirementin
Section 461 of the Local Government Code. Petitioners assert that when the Implementing
RulesandRegulationsconflictwiththelawthattheyseektoimplement,thelawprevails.
6/19/2016 G.R.No.180050

Ontheotherhand,respondentscontendintheirrespectiveMemorandathattheProvince
ofDinagatIslandsmetthelegalstandardforitscreation.

First,theBureauofLocalGovernmentFinancecertifiedthattheaverageannualincome
of the proposed Province of Dinagat Islands for the years 2002 to 2003 based on the 1991
constantpriceswasP82,696,433.25.

Second,theLandsManagementBureaucertifiedthatthoughthelandareaoftheProvince
ofDinagatIslandsis802.12squarekilometers,itiscomposedofoneormoreislandsthus,itis
exemptfromtherequiredlandareaof2,000squarekilometersunderparagraph2ofArticle9of
theRulesandRegulationsImplementingtheLocalGovernmentCode.

Third, in the special census conducted by the Provincial Government of Surigao del
Norte, with the assistance of a District Census Coordinator of the NSO, the number of
inhabitants in the Province of Dinagat Islands as of 2003, or almost three years before the
enactment of R.A. No. 9355 in 2006, was 371,576, which is more than the minimum
requirementof250,000inhabitants.

In his Memorandum, respondent Governor Ace S. Barbers contends that although the
result of the special census conducted by the Provincial Government of Surigao del Norte on
December2,2003wasnevercertifiedbytheNSO,itiscrediblesinceitwasconductedwiththe
aid of a representative of the NSO. He alleged that the lack of certification by the NSO was
curedbythepresenceofNSOofficials,whotestifiedduringthedeliberationsonHouseBillNo.
884 creating the Province of Dinagat Islands, and who questioned neither the conduct of the
specialcensusnorthevalidityoftheresult.

TheRulingoftheCourt

Thepetitionisgranted.

TheconstitutionalprovisiononthecreationofaprovinceinSection10,ArticleXofthe
Constitutionstates:

SEC.10.No province, city,municipality, or barangay may be created,divided,merged,
6/19/2016 G.R.No.180050
abolished, or its boundary substantially altered, except in accordance with the criteria
establishedinthelocalgovernmentcodeandsubjecttoapprovalbyamajorityofthevotescast
[14]
inaplebisciteinthepoliticalunitsdirectlyaffected.

PursuanttotheConstitution,theLocalGovernmentCodeof1991prescribedthecriteria
forthecreationofaprovince,thus:

SEC.461.RequisitesforCreation.(a)Aprovincemaybecreatedifithasan average
annualincome,ascertifiedbytheDepartmentofFinance,ofnotlessthanTwentymillionpesos
(P20,000,000.00)basedon1991constantpricesandeitherofthefollowingrequisites:

(i) a contiguous territory of at least two thousand (2,000) square kilometers, as
certifiedbytheLandsManagementBureauor
(ii) a population of not less than two hundred fifty thousand (250,000) inhabitants as
certifiedbytheNationalStatisticsOffice:

Provided,That,thecreationthereofshallnotreducethelandarea,population,andincome
ofthe original unit or units at the time ofsaid creation to less than the minimum requirements
prescribedherein.

(b)Theterritoryneednotbecontiguousifitcomprisestwo(2)ormoreislandsoris
separatedbyacharteredcityorcitieswhichdonotcontributetotheincomeoftheprovince.

(c) The average annual income shall include the income accruing to the general fund,
[15]
exclusiveofspecialfunds,trustfunds,transfers,andnonrecurringincome.

As a clarification of the territorial requirement, the Local Government Code requires a
contiguous territory of at least 2,000 square kilometers, as certified by the Lands
ManagementBureau.However,theterritoryneednotbecontiguousifitcomprisestwo(2)
ormoreislands orisseparatedbyachartered city or cities that do not contribute to the
incomeoftheprovince.

Ifaproposedprovinceiscomposedoftwoormoreislands,doesterritory,underSec.461
oftheLocalGovernmentCode, include not only the land mass above the water, but also that
whichisbeneathit?

To answer the question above, the discussion in Tan v. Commission on Elections
[16]
(COMELEC) isenlightening.

6/19/2016 G.R.No.180050
In Tan v. COMELEC, petitioners therein contended that Batas Pambansa Blg. 885,
creating the new Province of Negros del Norte, was unconstitutional for it was not in accord
with Art. XI, Sec. 3 of the Constitution, and Batas Pambansa Blg. 337, the former Local
Government Code. Although what was applicable then was the 1973 Constitution and the
formerLocalGovernmentCode,theprovisionspertinenttothecasearesubstantiallysimilarto
theprovisionsinthiscase.

Art.XI,Sec.3ofthe1973Constitutionprovides:

Sec.3.Noprovince,city,municipalityorbarrio(barangayinthe1987Constitution)may
becreated,divided,merged,abolished,oritsboundarysubstantiallyalteredexceptinaccordance
with the criteria established in the local government code, and subject to the approval by a
majorityofthevotesinaplebisciteintheunitorunitsaffected.

TherequisitesforthecreationofaprovinceinSec.197ofBatasPambansaBlg.337are
similartotherequisitesinSec.461oftheLocalGovernmentCodeof1991,buttherequirements
for population and territory/land area are lower now, while the income requirement is higher.
Sec.197ofBatasPambansaBlg.337,theformerLocalGovernmentCode,provides:

SEC. 197.Requisites for Creation.A province may be created if it has a territory of at
least three thousand five hundred square kilometers, a population of at least five hundred
thousandpersons,anaverageestimatedannualincome,ascertifiedbytheMinistryofFinance,
ofnotlessthantenmillionpesosforthelastthreeconsecutiveyears,anditscreationshallnot
reducethepopulationandincomeofthemotherprovinceorprovincesatthetimeofsaidcreation
tolessthantheminimumrequirementsunderthissection.Theterritoryneednotbecontiguous
ifitcomprisestwoormoreislands.

The average estimated annual income shall include the income allotted for both the
[17]
generalandinfrastructurefunds,exclusiveoftrustfunds,transfersandnonrecurringincome.

In Tan v. COMELEC, petitioners therein filed a case for Prohibition for the purpose of
stoppingtheCOMELECfromconductingtheplebiscitescheduledonJanuary3,1986.Sincethe
Court was in recess, it was unable to consider the petition on time. Petitioners filed a
supplementalpleading,averringthattheplebiscitesoughttoberestrainedbythemwasheldas
scheduled, but there were still serious issues raised in the case affecting the legality,
constitutionality and validity of such exercise which should properly be passed upon and
resolvedbytheCourt.

6/19/2016 G.R.No.180050
At issue in Tan was the land area of the new Province of Negros del Norte, and the
validity of the plebiscite, which did not include voters of the parent Province of Negros
Occidental,butonlythoselivingwithintheterritoryofthenewProvinceofNegrosdelNorte.

TheCourtheldthattheplebisciteshouldhaveincludedthepeoplelivingintheareaofthe
proposed new province and those living in the parent province. However, the Court did not
directtheconductofanewplebiscite,becausethefactualandlegalbasisforthecreationofthe
new province did not exist as it failed to satisfy the land area requirement hence, Batas
Pambansa Blg. 885, creating the new Province of Negros del Norte, was declared
unconstitutional.TheCourtfoundthatthelandareaofthenewprovincewasonlyabout2,856
squarekilometers,whichwasbelowthestatutoryrequirementthenof3,500squarekilometers.

RespondentsinTaninsistedthatwhentheLocalGovernmentCodespeaksoftherequired
territoryoftheprovincetobecreated,whatiscontemplatedisnotonlythelandarea,butalso
thelandandwateroverwhichthesaidprovincehasjurisdictionandcontrol. The respondents
submittedthatinthisregard,themarginalseawithinthethreemilelimitshouldbeconsideredin
determiningtheextentoftheterritoryofthenewprovince.
[18]
TheCourtstatedthat[s]uchaninterpretationisstrained,incorrectandfallacious. It
held:

The last sentence of the first paragraph of Section 197 is most revealing. As so stated
thereinthe"territoryneednotbecontiguousifitcomprisestwoormoreislands."Theuseofthe
wordterritory in this particular provision of the Local Government Code and in the very
lastsentencethereof,clearly,reflectsthat"territory"asthereinused,hasreferenceonlyto
themassoflandareaandexcludesthewatersoverwhichthepoliticalunitexercisescontrol.

Saidsentencestatesthatthe"territoryneednotbecontiguous."Contiguousmeans(a)in
physical contact (b) touching along all or most of one side (c) near, [n]ext, or adjacent
(Webster's New World Dictionary, 1972 Ed., p. 307). "Contiguous," when employed as an
adjective, as in the above sentence, is only used when it describes physical contact, or a
touchingofsidesoftwosolidmassesofmatter.Themeaningofparticulartermsinastatute
may be ascertained by reference to words associated with or related to them in the statute
(Animal Rescue League vs. Assessors, 138 A.L.R., p. 110). Therefore, in the context of the
sentenceabove,whatneednotbe"contiguous"isthe"territory"thephysicalmassoflandarea.
There would arise no need for the legislators to use the word contiguous if they had
intendedthattheterm"territory"embracenotonlylandareabutalsoterritorialwaters.It
can be safely concluded that the word territory in the first paragraph of Section 197 is
meant to be synonymous with "land area" only. The words and phrases used in a statute
6/19/2016 G.R.No.180050
shouldbegiventhemeaningintendedbythelegislature(82C.J.S.,p.636).Thesenseinwhich
the words are used furnished the rule of construction (In re Winton Lumber Co., 63 p. 2d., p.
[19]
664).

ThediscussionoftheCourtinTanonthedefinitionandusageofthetermsterritory,and
contiguous, and the meaning of the provision, The territory need not be contiguous if it
comprises two or more islands, contained in Sec. 197 of the former Local Government Code,
which provides for the requisites in the creation of a new province, is applicable in this case
since there is no reason for a change in their respective definitions, usage, or meaning in its
counterpartprovisioninthepresentLocalGovernmentCodecontainedinSec.461thereof.

The territorial requirement in the Local Government Code is adopted in the Rules and
[20]
RegulationsImplementingtheLocalGovernmentCodeof1991(IRR), thus:

ART. 9. Provinces.(a) Requisites for creationA province shall not be created unless the
followingrequisitesonincomeandeitherpopulationorlandareaarepresent:

(1)IncomeAnaverageannualincomeofnotlessthanTwentyMillion
Pesos(P20,000,000.00)fortheimmediatelyprecedingtwo(2)consecutiveyears
based on 1991 constant prices, as certified by DOF.The average annual income
shallincludetheincomeaccruingtothegeneralfund,exclusiveofspecialfunds,
specialaccounts,transfers,andnonrecurringincomeand

(2)PopulationorlandareaPopulationwhichshallnotbelessthantwo
hundred fifty thousand (250,000) inhabitants, as certified by National Statistics
Office or land area which must be contiguous with an area of at least two
thousand(2,000)squarekilometers,ascertifiedbyLMB.Theterritoryneed
notbecontiguousifitcomprisestwo(2)ormoreislandsorisseparatedbya
charteredcityorcitieswhichdonotcontributetotheincomeoftheprovince.
The land area requirement shall not apply where the proposed province is
composed of one (1) or more islands. The territorial jurisdiction of a province
soughttobecreatedshallbeproperlyidentifiedbymetesandbounds.

However, the IRR went beyond the criteria prescribed by Section 461 of the Local
Government Code when it added the italicized portion above stating that [t]he land area
requirement shall not apply where the proposed province is composed of one (1) or more
islands.NowhereintheLocalGovernmentCodeisthesaidprovisionstatedorimplied. Under
Section461oftheLocalGovernmentCode,theonlyinstancewhentheterritorialorlandarea
requirementneednotbecompliedwithiswhenthereisalreadycompliancewiththepopulation
6/19/2016 G.R.No.180050
requirement.TheConstitutionrequiresthatthecriteriaforthecreationofaprovince,including
[21]
any exemption from such criteria, must all be written in the Local Government Code.
There is no dispute that in case of discrepancy between the basic law and the rules and
regulationsimplementingthesaidlaw,thebasiclawprevails,becausetherulesandregulations
[22]
cannotgobeyondthetermsandprovisionsofthebasiclaw.

Hence, the Court holds that the provision in Sec. 2, Art. 9 of the IRR stating that [t]he
land area requirement shall not apply where the proposed province is composed of one (1) or
moreislandsisnullandvoid.

Respondents, represented by the Office of the Solicitor General, argue that rules and
regulations have the force and effect of law as long as they are germane to the objects and
purposesofthelaw.Theycontendthattheexemptionfromthelandarearequirementof2,000
squarekilometersisgermanetothepurposeoftheLocalGovernmentCodetodeveloppolitical
andterritorialsubdivisionsintoselfreliantcommunitiesandmakethemmoreeffectivepartners
[23]
intheattainmentofnationalgoals. TheyassertthatinHolySpiritHomeownersAssociation,
[24]
Inc. v. Defensor, the Court declared as valid the implementing rules and regulations of a
statute, even though the administrative agency added certain provisions in the implementing
rulesthatwerenotfoundinthelaw.

In Holy Spirit Homeowners Association, Inc. v. Defensor, the provisions in the
implementingrulesandregulations,whichwerequestionedbypetitionertherein,merely filled
inthedetailsinaccordancewithaknownstandard.ThelawthatwasquestionedwasR.A.No.
9207, otherwise known as National Government Center (NGC) Housing and Land Utilization
Actof2003.ItwasthereindeclaredthatthepolicyoftheState[was]tosecurethelandtenureof
the urban poor. Toward this end, lands located in the NGC, Quezon City shall be utilized for
housing,socioeconomic,civic,educational,religiousandotherpurposes.Section5ofR.A.No.
9207createdtheNationalGovernmentCenterAdministrationCommittee,whichwastaskedto
administer,formulatetheguidelinesandpoliciesandimplementthelanddispositionoftheareas
coveredbythelaw.
PetitionersthereincontendedthatwhileSec.3.2(a.1)oftheIRRfixedthesellingrateofa
lotatP700.00persq.m.,R.A.No.9207didnotprovidefortheprice.Inaddition,Sec.3.2(c.1)
6/19/2016 G.R.No.180050
oftheIRRpenalizesabeneficiarywhofailstoexecuteacontracttosellwithinsix(6)months
fromtheapprovalofthesubdivisionplanbyimposingapriceescalation,whilethereisnosuch
penalty imposed by R.A. No. 9207. Thus, they conclude that the assailed provisions conflict
withR.A.No.9207andshouldbenullified.
InHolySpiritHomeownersAssociation,Inc.,theCourtheld:

Wherearuleorregulationhasaprovisionnotexpresslystatedorcontainedinthestatute
beingimplemented,thatprovisiondoesnotnecessarilycontradictthestatute.Alegislativeruleis
inthenatureofsubordinatelegislation,designedtoimplementaprimarylegislationbyproviding
thedetailsthereof.Allthatisrequiredisthattheregulationshouldbegermanetotheobjects
and purposes of the law that the regulation be not in contradiction to but in conformity
withthestandardsprescribedbythelaw.

In Section 5 of R.A. No. 9207, the Committee is granted the power to administer,
formulateguidelinesandpolicies,andimplementthedispositionoftheareascoveredbythelaw.
Implicit in this authority and the statutes objective of urban poor housing is the power of the
Committee to formulate the manner by which the reserved property may be allocated to the
beneficiaries.Underthisbroadpower,theCommitteeismandatedtofillinthedetailssuchasthe
qualificationsofbeneficiaries,thesellingpriceofthelots,thetermsandconditionsgoverningthe
saleandotherkeyparticularsnecessarytoimplementtheobjectiveofthelaw.Thesedetailsare
purposely omitted from the statute and their determination is left to the discretion of the
Committee because the latter possesses special knowledge and technical expertise over these
matters.

TheCommitteesauthoritytofixthesellingpriceofthelotsmaybelikenedtotherate
fixing power of administrative agencies. In case of a delegation of ratefixing power, the only
standard which the legislature is required to prescribe for the guidance of the administrative
authority is that the rate be reasonable and just. However, it has been held that even in the
absence of an express requirement as to reasonableness, this standard may be implied. In this
regard,petitionersdonotevenclaimthatthesellingpriceofthelotsisunreasonable.

The provision on the price escalation clause as a penalty imposed to a beneficiary who
fails to execute a contract to sell within the prescribed period is also within the Committees
authoritytoformulateguidelinesandpoliciestoimplementR.A.No.9207.TheCommitteehas
thepowertolaydownthetermsandconditionsgoverningthedispositionofsaidlots,provided
that these are reasonable and just. There is nothing objectionable about prescribing a period
withinwhichthepartiesmustexecutethecontracttosell.Thisconditioncanordinarilybefound
in a contract to sell and is not contrary to law, morals, good customs, public order, or public
[25]
policy.

Hence,theprovisionsintheimplementingrulesandregulationsthatwerequestionedin
Holy Spirit Homeowners Association, Inc. merely filled in the necessary details to implement
the objective of the law in accordance with a known standard, and were thus germane to the
purposeofthelaw.

6/19/2016 G.R.No.180050
Inthiscase,thepertinentprovisionintheIRRdidnotfillinanydetailinaccordancewith
a known standard provided for by the law. Instead, the IRR added an exemption to the
standardorcriteriaprescribedbytheLocalGovernmentCodeinthecreationofaprovinceas
regards the land area requirement, which exemption is not found in the Code. As such, the
provisionintheIRRthatthelandarearequirementshallnotapplywheretheproposedprovince
iscomposedofoneormoreislandsisnotinconformitywiththestandardorcriteriaprescribed
bytheLocalGovernmentCodehence,itisnullandvoid.

Contrarytothecontentionofrespondents,theextraneousprovisioncannotbeconsidered
asgermanetothepurposeofthelawtodevelopterritorialandpoliticalsubdivisionsintoself
reliantcommunitiesbecause,inthefirstplace,italreadyconflictswiththecriteriaprescribedby
thelawincreatingaterritorialsubdivision.

[26]
Further,citingGalarosav.Valencia, theOfficeoftheSolicitorGeneralcontendsthat
the IRRs issued by the Oversight Committee composed of members of the legislative and
executivebranchesofthegovernmentareentitledtogreatweightandrespect,astheyareinthe
natureofexecutiveconstruction.

The case is not in point. In Galarosa, the issue was whether or not Galarosa could
continuetoserveasamemberoftheSangguniangBayanbeyondJune30,1992,thedatewhen
the term of office of the elective members of the Sangguniang Bayan of Sorsogon expired.
Galarosa was the incumbent president of the Katipunang Bayan or Association of Barangay
Councils(ABC)oftheMunicipalityofSorsogon,ProvinceofSorsogonandwasappointedasa
memberoftheSangguniangBayan(SB)ofSorsogonpursuanttoExecutiveOrderNo.342in
relationtoSec.146ofBatasPambansaBlg.337,theformerLocalGovernmentCode.

[27]
Sec. 494 of the Local Government Code of 1991 states that the duly elected
presidentsoftheliga[ngmgabarangay]atthemunicipal,cityandprovinciallevels,including
the component cities and municipalities of Metropolitan Manila, shall serve as ex officio
members of the sangguniang bayan, sangguniang panglungsod, and sangguniang
panlalawigan, respectively. They shall serve as such only during their term of office as
presidents of the liga chapters which, in no case, shall be beyond the term of office of the
sanggunianconcerned.Thesection,however,doesnotfixthespecificdurationoftheirtermas
ligapresident.TheCourtheldthatthiswaslefttothebylawsoftheligapursuanttoArt.211(g)
6/19/2016 G.R.No.180050
of the Rules and Regulations Implementing the Local Government Code of 1991. Moreover,
[28]
there was no indication that Secs. 491 and 494 should be given retroactive effect to
adversely affect the presidents of the ABC hence, the said provisions were to be applied
prospectively.
TheCourtstatedthatthereisnolawthatprohibitsABCpresidentsfromholdingoveras
members of the Sangguniang Bayan. On the contrary, the IRR, prepared and issued by the
Oversight Committee upon specific mandate of Sec. 533 of the Local Government Code,
expresslyrecognizesandgrantstheholdoverauthoritytotheABCpresidentsunderArt.210,
[29]
RuleXXIX. TheCourtupheldtheapplicationoftheholdoverdoctrineintheprovisionsof
the IRR and the issuances of the DILG, whose purpose was to prevent a hiatus in the
governmentpendingthetimewhenthesuccessormaybechosenandinductedintooffice.
TheCourtheldthatSec.494oftheLocalGovernmentCodecouldnothavebeenintended
toallowagapintherepresentationofthebarangays,throughthepresidentsoftheABC,inthe
sanggunian. Since the term of office of the punong barangays elected in the March 28, 1989
electionandthetermofofficeofthepresidentsoftheABChadnotyetexpired,andtakinginto
account the special role conferred upon, and the broader powers and functions vested in the
barangaysbytheCode,itwasinferredthattheCodeneverintendedtodeprivethebarangaysof
theirrepresentationinthesangguniangbayanduringtheinterregnumwhentheligahadyetto
beformallyorganizedwiththeelectionofitsofficers.

Under the circumstances prevailing in Galarosa, the Court considered the relevant
provisionsintheIRRformulatedbytheOversightCommitteeandthepertinentissuancesofthe
DILGinthenatureofexecutiveconstruction,whichwereentitledtogreatweightandrespect.
Courtsdeterminetheintentofthelawfromtheliterallanguageofthelawwithinthelaws
[30]
fourcorners. Ifthelanguageofthelawisplain,clearandunambiguous,courtssimplyapply
[31]
thelawaccordingtoitsexpressterms. Ifaliteralapplicationofthelawresultsinabsurdity,
impossibilityorinjustice,thencourtsmayresorttoextrinsicaidsofstatutoryconstructionlike
[32]
the legislative history of the law, or may consider the implementing rules and regulations
andpertinentexecutiveissuancesinthenatureofexecutiveconstruction.
Inthiscase,therequirementsforthecreationofaprovincecontainedinSec.461ofthe
Local Government Code are clear, plain and unambiguous, and its literal application does not
result in absurdity or injustice. Hence, the provision in Art. 9(2) of the IRR exempting a
6/19/2016 G.R.No.180050
proposedprovincecomposedofoneormoreislandsfromthelandarearequirementcannotbe
consideredanexecutiveconstructionofthecriteriaprescribedbytheLocalGovernmentCode.
ItisanextraneousprovisionnotintendedbytheLocalGovernmentCodeand,therefore,isnull
andvoid.
WhetherR.A.No.9355compliedwiththerequirementsofSection461ofthe
LocalGovernmentCodeincreatingtheProvinceofDinagatIslands

ItisundisputedthatR.A.No.9355compliedwiththeincomerequirementspecifiedby
theLocalGovernmentCode.Whatisdisputedisitscompliancewiththelandareaorpopulation
requirement.

R.A. No. 9355 expressly states that the Province of Dinagat Islands contains an
approximatelandareaofeightythousandtwohundredtwelvehectares(80,212has.)or802.12
sq.km.,moreorless,includingHibusonIslandandapproximatelyfortyseven(47)isletsxxx.
[33]
R.A.No.9355,therefore,failedtocomplywiththelandarearequirementof2,000square
kilometers.

TheProvinceofDinagatIslandsalsofailedtocomplywiththepopulationrequirementof
not less than 250,000 inhabitants as certified by the NSO. Based on the 2000 Census of
PopulationconductedbytheNSO,thepopulationoftheProvinceofDinagatIslandsasofMay
1,2000wasonly106,951.

AlthoughtheProvincialGovernmentofSurigaodelNorteconductedaspecialcensusof
populationinDinagatIslandsin2003,whichyieldedapopulationcountof371,000,theresult
[34]
was not certified by the NSO as required by the Local Government Code. Moreover,
respondents failed to prove that with the population count of 371,000, the population of the
original unit (mother Province of Surigao del Norte) would not be reduced to less than the
[35]
minimumrequirementprescribedbylawatthetimeofthecreationofthenewprovince.
Respondents contended that the lack of certification by the NSO was cured by the
presence of the officials of the NSO during the deliberations on the house bill creating the
Province of Dinagat Islands, since they did not object to the result of the special census
conductedbytheProvincialGovernmentofSurigaodelNorte.

Thecontentionofrespondentsdoesnotpersuade.
6/19/2016 G.R.No.180050

Although the NSO representative to the Committee on Local Government deliberations
datedNovember24,2005didnotobjecttothe
resultoftheprovincialgovernmentsspecialcensus,whichwasconductedwiththeassistanceof
anNSOdistrictcensuscoordinator,itwasagreedbytheparticipantsthatthesaidresultwasnot
certifiedbytheNSO,whichistherequirementoftheLocalGovernmentCode.Moreover, the
NSOrepresentative,StatisticianIIMa.SolitaC.Vergara,statedthatbasedontheircomputation,
thepopulationrequirementof250,000inhabitantswouldbeattainedbytheProvinceofDinagat
Islands by the year 2065. The computation was based on the growth rate of the population,
excludingmigration.

ThepertinentportionofthedeliberationonHouseBillNo.884creatingtheProvinceof
Dinagatreads:

THE CHAIRMAN (Hon. Alfredo S. Lim): . . . There is no problem with the land area
requirementandtotheincomerequirement.Theproblemiswiththepopulationrequirement.

xxxx

Nowbecauseofthisquestion,wewouldliketomakeitofrecordthestandandreplyof
NationalStatisticsOffice.CanwehearnowfromMs.SolitaVergara?

MS. VERGARA. We only certify population based on the counts proclaimed by the
President.Andinthiscase,weonlycertifythepopulationbasedontheresultsofthe2000census
ofpopulationandhousing.

THECHAIRMAN.Isthat

MS.VERGARA.Sir,asperBatasPambansa,BP72,weonlyfollowkunganopoyong
mandated by the law. So, as mandated by the law, we only certify those counts proclaimed
officialbythePresident.

THE CHAIRMAN. But the government of Surigao del Norte is headed by Governor
Robert Lyndon Ace Barbers and they conducted this census in year 2003 and yours was
conducted in year 2000. So, within that time frame, three years, there could be an increase in
populationortransferofresidents,isthatpossible?

MS.VERGARA.Yes,sir,butthenweonlyconductcensusofpopulationevery10years
andweconductspecialcensuseveryfiveyears.So,inthiscase,maybebynextyear,wewillbe
conductingthe2006.

THE CHAIRMAN. But next year will be quite a long time, the matter is now being
discussedonthetable.So,isthattheonlythingyoucouldsaythatitsnotauthorizedbyNational
StatisticsOffice?

MS.VERGARA.Yes,sir.We have passed a resolutionorders to the provincial officesto
6/19/2016 G.R.No.180050
ourprovincialofficesstatingthatwecanprovideassistanceintheconduct,butthenwecannot
certifytheresultoftheconductasofficial.

THE CHAIRMAN. May we hear from the Honorable Governor Robert Lyndon Ace
Barbers,yourreplyonthestatementoftherepresentativefromNationalStatisticsOffice.

MR.BARBERS.Thankyou,Mr.Chairman,goodmorning.
Yes, your Honor, we have conducted a special census in the year 2003. We were
accompaniedbyoneoftheemployeesfromtheProvincialNationalStatisticsOffice.However,
we also admit the fact that our special census or the special census we conducted in 2003
wasnotvalidatedorcertifiedbytheNationalStatisticsOffice,asprovidedbylaw.So, we
admitonourpartthatthecertificationthatIhaveissuedbasedonthesubmissionofrecordsof
each locality or each municipality from Dinagat Island[s] were true and correct based on our
level,notonNationalStatisticsOfficelevel.

But with that particular objection of Executive Director Ericta on what we have
conducted, I believe, your Honor, it will be, however, moot and academic in terms of the
provisionundertheLocalGovernmentCodeontherequirementsinmakingoneareaaprovince
becausewhatweneedisaminimumof20million,asstatedbytheHonorableChairmanand,of
course,thelandarea.Now,intermsofthelandarea,DinagatIsland[s]isexemptedbecausexxx
theareaiscomposedofmorethanoneisland.Infact,thereareabout47lowtideandhightide,
lessthan40?xxxx

THECHAIRMAN.Thankyou,Governor.xxxx

xxxx

THECHAIRMAN.Althoughtheclaimofthegovernoris,evenifweholdinabeyance
thisquestionedrequirement,theothertworequirements,asmandatedbylaw,isalreadyachieved
theincomeandthelandarea.

MS.VERGARA.Wedonotquestionpotheresultsofanylocallyconductedcensus,
kasipotalagangweprovideassistancewhiletheyreconductingtheirowncensus.Butthen,
angrequirementpokasiis,bastawewillnotcertifywewillnotcertifyanypopulationcount
asaresultnoongkanilanglocallyconductedcensus.Eh,saLocalGovernmentCodepo,we
all know na ang xxx nirerequire nila is a certification provided by National Statistics
Office.Yonpoyongrequirement,dibapo?

THE CHAIRMAN. Oo. But a certification, even though not issued, cannot go against
actualrealitybecausethatsjustabureaucraticrequirement.Angibigkongsabihin,ipagpalagay,a
couple isang lalaki, isang babae nagmamahalan sila. As an offshoot of this undying love,
nagkaroonngmgaanak,hindiba,perohindikasal,itsaliveinsituation.Ang tanong ko lang,
whether eventually, they got married or not, that love remains. And we cannot deny also the
existenceoftheoffspringoutofthatlove,diba?Kayayonlang.Okay.So,wejustskiponthis.

MS.VERGARA.YourHonor.

REP.ECLEO(GLENDA).Mr.Chairman.

THECHAIRMAN.Please,Ms.Vergara.

MS. VERGARA. Yong sinasabi nyo po, sir, bale we computed the estimated
6/19/2016 G.R.No.180050
populationpongDinagatProvinceforthenextyears.So,basedonourcomputation,mari
reachpongDinagatProvinceyongrequirementna250,000populationbytheyear2065pa
pobasedonthegrowthratesduringtheperiodof.

THECHAIRMAN.2065?

MS.VERGARA.2065po.

xxxx

THECHAIRMAN.. . . [T]his is not the center of our argument since, as stated by the
governor, kahit ha huwag na munang iconsider itong population requirement, eh, nakalagpas
namansiladoonsaincomeandlandarea,hindiba?

Okay.LetsgivethefloortoCongresswomanEcleo.

REP.ECLEO(GLENDA).Thankyou,Mr.Chairman.

This is in connection with the special census. Before this was done, I went to the
NSO. I talked to Administrator Ericta on the population. Then, I was told that the
population, official population of Dinagat is 106,000. So, I told them that I want a special
census to be conducted because there are so many houses that were not reached by the
governmentenumerators,andIwanttohavemyownorourownspecialcensuswiththehelpof
theprovincialgovernment.So,thatishowitwasconducted.Then,theytoldmethattheofficial
populationoftheproposedprovincewillbeon2010.But at this moment, that is the official
populationof106,000,evenifourspecialcensus,wecameupwith371,000plus.

So,thatisit.

THECHAIRMAN.Thankyou,Congresswoman.
YourinsightswillbereflectedinmyreplytoSenatePresidentDrilon,sothathecanalso
answertheletterofBishopCabahug.

MS.VERGARA.Mr.Chairman,mayclarificationslangdinpoako.
THECHAIRMAN.Please.

MS. VERGARA. Yon po sa sinasabi naming estimated population, we only based the
computationdoonsagrowthratelangpotalaga,excludingthemigration.xxxx

MR.CHAIRMAN.Nongmgaresidents.

[36]
MS.VERGARA.Yes,sir,naturalgrowthlangpotalagasiya.

To reiterate, when the Dinagat Islands was proclaimed a new province on December 3,
2006, it had an official population of only 106,951 based on the NSO 2000 Census of
Population.Lessthanayearaftertheproclamationofthenewprovince,theNSOconductedthe
2007CensusofPopulation.TheNSOcertifiedthatasofAugust1,2007,DinagatIslandshada
[37]
total population of only 120,813, which was still below the minimum requirement of
6/19/2016 G.R.No.180050
[38]
250,000inhabitants.

In fine, R.A. No. 9355 failed to comply with either the territorial or the population
requirementforthecreationoftheProvinceofDinagatIslands.

TheConstitutionclearlymandatesthatthecreationoflocalgovernmentunitsmustfollow
[39]
thecriteriaestablishedintheLocalGovernmentCode. Anyderogationofordeviationfrom
the criteria prescribed in the Local Government Code violates Sec. 10, Art. X of the
[40]
Constitution.

Hence,R.A.No.9355isunconstitutionalforitsfailuretocomplywiththecriteriaforthe
creationofaprovinceprescribedinSec.461oftheLocalGovernmentCode.

WhetherthecreationoftheProvinceofDinagatIslands
isanactofgerrymandering

Petitioners contend that the creation of the Province of Dinagat Islands is an act of
gerrymandering on the ground that House Bill No. 884 excluded Siargao Island, with a
populationof118,534inhabitants,fromthenewprovinceforcompletepoliticaldominanceby
CongresswomanGlendaEcleoVillaroman.Accordingtopetitioners,ifSiargaowereincludedin
the creation of the new province, the territorial requirement of 2,000 square kilometers would
have been easily satisfied and the enlarged area would have a bigger population of 200,305
inhabitants based on the 2000 Census of Population by the NSO. But House Bill No. 884
excluded Siargao Island, because its inclusion would result in uncertain political control.
Petitioners aver that, in the past, Congresswoman Glenda EcleoVillaroman lost her
congressionalseattwicetoamemberofaninfluentialfamilybasedinSiargao.Therefore, the
only way to complete political dominance is by gerrymandering, to carve a new province in
DinagatIslandswherethePhilippineBenevolentMembersAssociation(PMBA),representedby
theEcleos,hasthenumbers.

Theargumentofpetitionersisunsubstantiated.
6/19/2016 G.R.No.180050

Gerrymandering is a term employed to describe an apportionment of representative
[41]
districts so contrived as to give an unfair advantage to the party in power. Fr. Joaquin G.
Bernas, a member of the 1986 Constitutional Commission, defined gerrymandering as the
formation of one legislative district out of separate territories for the purpose of favoring a
[42]
candidate or a party. The Constitution proscribes gerrymandering, as it mandates each
legislative district to comprise, as far as practicable, a contiguous, compact and adjacent
[43]
territory.

AsstatedbytheOfficeoftheSolicitorGeneral,theProvinceofDinagatIslandsconsists
of one island and about 47 islets closely situated together, without the inclusion of separate
territories. It is an unsubstantiated allegation that the province was created to favor
CongresswomanGlendaEcleoVillaroman.

Allegationsoffraudandirregularitiesduringtheplebiscitecannotberesolvedin
aspecialcivilactionforcertiorari

Lastly, petitioners alleged that R.A. No. 9355 was ratified by a doubtful mandate in a
plebisciteheldonDecember2,2005,wheretheyesvoteswere69,9343,whilethenovoteswere
63,502. They contend that the 100% turnout of voters in the precincts of San Jose, Basilisa,
Dinagat, Cagdianao and Libjo was contrary to human experience, and that the results were
statisticallyimprobable.Petitionersadmitthattheydidnotfileanyelectoralprotestquestioning
the results of the plebiscite, because they lacked the means to finance an expensive and
protractedelectioncase.

Allegationsoffraudandirregularitiesintheconductofaplebiscitearefactualinnature
hence,theycannotbethesubjectofthisspecialcivilactionforcertiorariunderRule65ofthe
Rules of Court, which is a remedy designed only for the correction of errors of jurisdiction,
[44]
includinggraveabuseofdiscretionamountingtolackorexcessofjurisdiction. Petitioners
should have filed the proper action with the Commission on Elections. However, petitioners
admittedlychosenottoavailthemselvesofthecorrectremedy.

WHEREFORE,thepetitionisGRANTED.RepublicActNo.9355,otherwiseknownas
6/19/2016 G.R.No.180050
[An Act Creating the Province of Dinagat Islands], is hereby declared unconstitutional. The
proclamation of the Province of Dinagat Islands and the election of the officials thereof are
declared NULL and VOID. The provision in Article 9 (2) of the Rules and Regulations
ImplementingtheLocalGovernmentCodeof1991stating,Thelandarearequirementshallnot
applywheretheproposedprovinceiscomposedofone(1)ormoreislands,isdeclaredNULL
andVOID.

Nocosts.

SOORDERED.

DIOSDADOM.PERALTA
AssociateJustice

WECONCUR:

REYNATOS.PUNO
ChiefJustice

ANTONIOT.CARPIO RENATOC.CORONA
AssociateJustice AssociateJustice

CONCHITACARPIOMORALES PRESBITEROJ.VELASCO,JR.

ANTONIOEDUARDOB.NACHURA TERESITAJ.LEONARDODECASTRO
6/19/2016 G.R.No.180050

ARTUROD.BRION
AssociateJustice
LUCASP.BERSAMIN
AssociateJustice

MARIANOC.DELCASTILLO ROBERTOA.ABAD

MARTINS.VILLARAMA,JR.JOSEP.PEREZ
AssociateJusticeAssociateJustice

JOSEC.MENDOZA
AssociateJustice

CERTIFICATION

PursuanttoSection13,ArticleVIIIoftheConstitution,Icertifythat
the conclusions in the above Decision had been reached in consultation
beforethecasewasassignedtothewriteroftheopinionoftheCourt.

REYNATOS.PUNO
ChiefJustice

6/19/2016 G.R.No.180050
[1]
OnNovember14,2006,petitionersRodolfoNavarro,VictorF.Bernal,RohitoC.Madelo,ClementeG.Sandigan,Jr.,JerryR.
Centro,JoseV.Begil,Jr.,ReneO.MedinaandJamarD.GavinofiledbeforethisCourtaPetitionforCertiorariandProhibitionwith
Prayer for Temporary Restraining Order against Secretary Eduardo Ermita, the Senate of the Philippines, the House of
Representatives,theCOMELECandtheProvincialGovernmentandProvincialTreasurerofSurigaodelNorte.Petitionerssoughtfor
thedeclarationofR.A.No.9355asunconstitutionalandinvalid,andprayedthattheCOMELECbeenjoinedfromconductinga
plebiscitependingresolutionontheconstitutionalityofR.A.No.9355.Thepetition,docketedasG.R.No.175158,wasdismissed
ontechnicalgrounds.
[2]
AnnexB1,rollo,p.89.
[3]
AnnexesB,B1toB2,id.at8890.
[4]
AnnexC,id.at91.
[5]
AnnexE,id.at124.
[6]
Id.
[7]
MemorandumofrespondentGovernorRobertAceS.Barbers,rollo,p.676.
[8]
MemorandumofPetitioners,id.at462463.
[9]
G.R.No.132527,July29,2005,465SCRA47.
[10]
Id.
[11]
ProvinceofBatangasv.Romulo,G.R.No.152774,May27,2004,429SCRA736.
[12]
Id.
[13]
Italicssupplied.
[14]
Emphasissupplied.
[15]
Emphasissupplied.
[16]
No.L73155,July11.1986,142SCRA727.
[17]
Emphasissupplied.
[18]
Tanv.CommissiononElections,supranote16at749.
[19]
Id.at749750.(Emphasissupplied.)
[20]
TheIRRwasformulatedbytheOversightCommitteepursuanttoSec.533oftheLocalGovernmentCode:
SEC.533.FormulationofImplementingRulesandRegulations.(a)Withinone(1)monthaftertheapprovalofthisCode,the
President shall convene the Oversight Committee as herein provided for. The said Committee shall formulate and issue the
appropriaterulesandregulationsnecessaryfortheefficientandeffectiveimplementationofanyandallprovisionsofthisCode,
therebyensuringcompliancewiththeprinciplesoflocalautonomyasdefinedundertheConstitution.
(b)TheCommitteeshallbecomposedofthefollowing:
(1)TheExecutiveSecretary,whoshallbetheChairman
(2)Three(3)membersoftheSenatetobeappointedbythePresidentoftheSenate,toincludetheChairmanoftheCommittee
onLocalGovernment
(3) Three (3) members of the House of Representatives to be appointed by the Speaker, to include the Chairman of the
CommitteeonLocalGovernment
(4)TheCabinet,representedbythefollowing:
(i)SecretaryoftheInteriorandLocalGovernment
(ii)SecretaryofFinance
(iii)SecretaryofBudgetandManagementand
(5)One(1)representativefromeachofthefollowing:
(i)TheLeagueofProvinces
6/19/2016 G.R.No.180050
(ii)TheLeagueofCities
(iii)TheLeagueofMunicipalitiesand
(iv)TheLigangmgaBarangay.
[21]
LeagueofCitiesofthePhilippinesv.CommissiononElections,G.R.Nos.176951,177499,178056,November18,2008,571
SCRA263.
[22]
HijoPlantation,Inc.v.CentralBank,G.R.No.L34526,August9,1988,164SCRA192.
[23]
LocalGovernmentCode,Sec.2.DeclarationofPolicy.(a)ItisherebydeclaredthepolicyoftheStatethattheterritorialand
political subdivisions of the State shall enjoy genuine and meaningful local autonomy to enable them to attain their fullest
developmentasselfreliantcommunitiesandmakethemmoreeffectivepartnersintheattainmentofnationalgoals.Towardthisend,
the State shall provide for a more responsive and accountable local government structure instituted through a system of
decentralizationwherebylocalgovernmentunitsshallbegivenmorepowers,authority,responsibilities,andresources.Theprocess
ofdecentralizationshallproceedfromtheNationalGovernmenttothelocalgovernmentunits.
(b)ItisalsothepolicyoftheStatetoensuretheaccountabilityoflocalgovernmentunitsthroughtheinstitutionofeffective
mechanismsofrecall,initiativeandreferendum.
(c)ItislikewisethepolicyoftheStatetorequireallnationalagenciesandofficestoconductperiodicconsultationswith
appropriate local government units, nongovernmental and peoples organizations, and other concerned sectors of the community
beforeanyprojectorprogramisimplementedintheirrespectivejurisdictions.
[24]
G.R.No.163980,August2,2006,497SCRA581.
[25]
Id.at599601.
[26]
G.R.No.109455,November11,1993,227SCRA728.
[27]
SEC.494.ExOfficioMembershipinSanggunians.Thedulyelectedpresidentsoftheliga[ngmgabarangay]atthemunicipal,
city and provincial levels, including the component cities and municipalities of Metropolitan Manila, shall serve as exofficio
membersofthesangguniangbayan,sangguniangpanglungsod,andsangguniangpanlalawigan,respectively.Theyshallserveas
suchonlyduringtheirtermofofficeaspresidentsoftheligachapters,whichinnocaseshallbebeyondthetermofofficeofthe
sanggunianconcerned.
[28]
SEC.491.PurposeofOrganization.Thereshallbeanorganizationofallbarangays,tobeknownastheLigangmgaBarangay,
for the primary purpose of determining the representation of the liga in the sanggunians and for ventilating, articulating and
crystallizingissuesaffectingbarangaygovernmentaladministrationandsecuring,throughproperandlegalmeans,solutionsthereto.
[29]
ART.210.Ligangmgabarangay.
xxxx
(d)ExOfficioMembershipintheSanggunian
(3)Theincumbentpresidentsofthemunicipal,city,andprovincialchaptersoftheligashallcontinuetoserveasexofficiomembersof
thesanggunianconcerneduntiltheexpirationoftheirtermofoffice,unlesssoonerrevokedforcause.
xxxx
(f)OrganizationalStructure
(1)xxxPendingelectionofthepresidentsofthemunicipal,city,provincial,andmetropolitanchaptersoftheliga,theincumbent
presidentsoftheassociationofbarangaycouncilsinthemunicipality,city,province,andMetropolitanManilashallcontinuetoact
aspresidentsofthecorrespondingligachaptersunderthisRule.

[30]
LeagueofCitiesofthePhilippinesv.CommissiononElections,supranote17.
[31]
Id.
[32]
Id.
[33]
Rollo,p.93.(Emphasissupplied.)
[34]
SEC.7.Creationandconversion.Asageneralrule,thecreationofalocalgovernmentunitoritsconversionfromonelevelto
anothershallbebasedonverifiableindicatorsofviabilityandprojectedcapacitytoprovideservices,towit:
(a)Income.Itmustbesufficient,basedonacceptablestandards,toprovideforallessentialgovernmentfacilitiesandservices
andspecialfunctionscommensuratewiththesizeofitspopulation,asexpectedofthelocalgovernmentunitconcerned
(b) Population. It shall be determined as the total number of inhabitants within the territorial jurisdiction of the local
governmentunitconcernedand
(c)Landarea.Itmustbecontiguous,unlessitcomprisestwo(2)ormoreislandsorisseparatedbyalocalgovernmentunit
6/19/2016 G.R.No.180050
independentoftheothersproperlyidentifiedbymetesandboundswithtechnicaldescriptionsandsufficienttoprovideforsuch
basicservicesandfacilitiestomeettherequirementsofitspopulace.
Compliance with the foregoing indicators shall be attested to by the Department of Finance (DOF), the National
StatisticsOffice(NSO),andtheLandsManagementBureau(LMB)oftheDepartmentofEnvironmentandNaturalResources
(DENR).
SEC.461.RequisitesforCreation.(a)Aprovincemaybecreatedifithasanaverageannualincome,ascertifiedbythe
Department of Finance, of not less than Twenty million pesos (P20,000,000.00) based on 1991 constant prices and either of the
followingrequisites:
(i)acontiguousterritoryofatleasttwothousand(2,000)squarekilometers,ascertifiedbytheLandsManagementBureauor
(ii)apopulationofnotlessthantwohundredfiftythousand(250,000)inhabitantsascertifiedbytheNationalStatisticsOffice:
Provided,That,thecreationthereofshallnotreducethelandarea,population,andincomeoftheoriginalunitorunitsatthe
timeofsaidcreationtolessthantheminimumrequirementsprescribedherein.(Emphasissupplied.)
[35]
Sec.461,supra.

[36]
AnnexA,rollo,pp.5161.
[37]
AnnexAA,id.at498.(Emphasissupplied.)
[38]
Emphasissupplied.
[39]
SeeLeagueofCitiesofthePhilippinesv.CommissiononElections,supranote17.
[40]
Id.
[41]
Cenizav.CommissiononElections,L52304,January28,1980,95SCRA775.
[42]
Bernas,The1987ConstitutionofthePhilippines:ACommentary,625(2006).
[43]
Id.
[44]
Cayetano,v.CommissiononElections,G.R.No.166388,January23,2006,479SCRA513.

001.tan V Comelec

Enviado por

Dados do documento

Título original

Direitos autorais

Formatos disponíveis

Compartilhar este documento

Compartilhar ou incorporar documento

Opções de compartilhamento

Você considera este documento útil?

Este conteúdo é inapropriado?

Direitos autorais:

Formatos disponíveis

001.tan V Comelec

Enviado por

Direitos autorais:

Formatos disponíveis

6/19/2016 G.R.No.

Você também pode gostar