EN BANC
G.R. No. 182604, September 27, 2016
DR. ROLANDO B. MANGUNE, DR. RENE A. ARCE AND EMMA E. TAÑAFRANCA, IN THEIR RESPECTIVE PERSONAL CAPACITIES AND AS ATTORNEYS-IN-FACT FOR AND IN BEHALF OF DR. VIRGINIA M. AGUILAS, ROLANDO R. ANATALIO, DR. LEA M. DE LEON-ASI, CATALINO N. ATANACIO, JR., JULIANA M. BATALLER, MA. LUISA B. CAÑEZA, LILIAN C. CANILAO, RANIEL S. CAPADA, FLORENDO A. DAYUS, JENNIFER D. PAGULAYAN, BIENVENIDO C. DE VILLA, JOSE A. DELOS REYES, CYNTHIA A. DIAZ, ANNA LEAH D. DIPATUAN, MADELAINE M. ESTOCAPIO, DR. MARIA SONIA YEE-FESTIN, MARIO E. FLORENDO, RUEL E. FORTUNADO, NATIVIDAD A. GAMIAO, IRMA Q. ANDAL, CHARITO C. LAZAM, AGNES R. LOVINDINO, EVELYN M. MABAG, RECHILDA B. MACAFE, ZENAIDA M. MADIANGKIT, ANGELICA T. MALAZARTE, DOMINGO P. MANAY, DR. EDGAR ORVEN M. MORTEL, SATURNINO E. QUIBAN, MARITES J. RAMOS, DR. MELINDA S.L. A. RAZALAN, BAITONGGAL L. SAUDAGAL, DR. JOHN ALBERT V. TABLIZO, JULIETA T. TERANIA, ANNIE B. TRINIDAD, JUDY T. AVNER, DR. ROMEO F. UY, AVELONA A. VEA, MINVILUZ G. VERA CRUZ, PEÑAFLOR M. VILLAFLOR, JR., AND DR. LEOPOLDO P. SISON, JR., ALL OF TAGUIG-PATEROS DISTRICT HOSPITAL, Petitioners, v. HONORABLE SECRETARY EDUARDO ERMITA, IN HIS OFFICIAL CAPACITY AS EXECUTIVE SECRETARY, HONORABLE SECRETARY FRANCISCO DUQUE III, IN HIS OFFICIAL CAPACITY AS SECRETARY OF THE DEPARTMENT OF HEALTH, THE CITY GOVERNMENT OF TAGUIG AS REPRESENTED BY ITS MAYOR, HONORABLE SIGFRIDO R. TINGA, AND THE MUNICIPAL GOVERNMENT OF PATEROS, AS REPRESENTED BY ITS MAYOR, HONORABLE ROSENDO CAPCO, Respondent.
D E C I S I O N
JARDELEZA, J.:
Before us is a Petition for Review1 assailing the Decision2 dated January 2, 2008 (assailed Decision) and Order3 dated April 14, 2008 (assailed Order) of the Regional Trial Court (RTC) of Manila, Branch 20 in Civil Case No. 07-116531, upholding the constitutionality of Executive Order No. 5674 (E.O. No. 567), issued by then President Gloria Macapagal-Arroyo (President Arroyo) on September 8, 2006.
E.O. No. 567 reads in full:ChanRoblesVirtualawlibraryPetitioners aver that E.O. No. 567 contradicts the constitutional principle of separation of powers as: (1) it amends the Local Government Code, particularly its Section 17(e), which limits devolution of basic services and facilities to local government units (LGUs) to only six (6) months after the effectivity of the law;34 and (2) it violates the DOH-issued Implementing Rules and Regulations (IRR) of the Local Government Code which provides that district health offices in the National Capital Region (NCR), including its district hospitals, are exempt from devolution.35 Petitioners also argue that E.O. No. 567 violates Republic Act No. 730536 (R.A. No. 7305) because the former did not include provisions for the expenses relative to petitioners' transfer and reassignment.37chanrobleslawExecutive Order No. 567
DEVOLVING THE TAGUIG-PATEROS DISTRICT HOSPITAL FROM THE DEPARTMENT OF HEALTH TO THE CITY OF TAGUIG
WHEREAS, Republic Act No. 7842 approved on 16 December 1994 established the Taguig-Pateros District Hospital under the administration and supervision of the Department of Health (DOH);
WHEREAS, under Republic Act No. 7160 otherwise known as the Local Government Code of 1991, local government units (LGUs) shall exercise such powers and discharge such functions and responsibilities as are necessary, appropriate or incidental to efficient and effective provision of basic services and facilities which cover, among others, health services including secondary and tertiary hospitals;
WHEREAS, the President has the continuing authority to reorganize the offices under the executive department;
NOW, THEREFORE, I, GLORIA MACAPAGAL-ARROYO, President of the Philippines, by virtue of the powers vested in me by law, do hereby order:
chanRoblesvirtualLawlibrarySection 1. The administration and supervision of Taguig-Pateros District Hospital is hereby devolved from the Department of Health to the City of Taguig.
Section 2. All laws, issuances, rules and regulations which are inconsistent with this Order are hereby repealed or modified accordingly.
Section 3. This Executive Order shall take effect fifteen (15) days after its publication in a national newspaper of general circulation.
Done in the City of Manila, this 8th day of September, in the year of Our Lord, Two Thousand and Six.
E.O. No. 567 satisfies all of the above requisites.
(1) Its promulgation must be authorized by the legislature; (2) It must be promulgated in accordance with the prescribed procedure; (3) It must be within the scope of the authority given by the legislature; and (4) It must be reasonable.41
Sec. 17. Basic Services and Facilities. -It is the policy of the Local Government Code to provide for a more responsive and accountable local government structure through a system of decentralization.43 Thus, E.O. No. 567 merely implements and puts into operation the policy and directive set forth in the Local Government Code.
(a) Local government units shall endeavor to be self-reliant and shall continue exercising the powers and discharging the duties and functions currently vested upon them. They shall also discharge the functions and responsibilities of national agencies and offices devolved to them pursuant to this Code. Local government units shall likewise exercise such other powers and discharge such other functions and responsibilities as are necessary, appropriate, or incidental to efficient and effective provisions of the basic services and facilities enumerated herein.
(b) Such basic services and facilities include, but are not limited to, the following:
chanRoblesvirtualLawlibraryx x x
(2) For a Municipality:ChanRoblesVirtualawlibrary(4) For a City:x x x
(iii) Subject to the provisions of Title Five, Book I of this Code, health services which include the implementation of programs and projects on primary health care, maternal and child care, and communicable and non-communicable disease control services, access to secondary and tertiary health services; purchase of medicines, medical supplies, and equipment needed to carry out the services herein enumerated;
x x x
chanRoblesvirtualLawlibraryAll the services and facilities of the municipality and province. x x xx x x
(e) National agencies or offices concerned shall devolve to local government units the responsibility for the provision of basic services and facilities enumerated in this Section within six (6) months after the effectivity of this Code.
As used in this Code, the term "devolution" refers to the act by which the national government confers power and authority upon the various local government units to perform specific functions and responsibilities.42chanroblesvirtuallawlibrary
(e) National agencies or offices concerned shall devolve to local government units the responsibility for the provision of basic services and facilities enumerated in this Section within six (6) months after the effectivity of this Code.For petitioners, the provision limits the devolution of services to a period of only six (6) months from the effectivity of the Local Government Code. Any devolution after the expiration of such period can only be done through a statutory act. Thus, the issuance of E.O. No. 567, which was well-beyond such period, is a clear usurpation of legislative functions.
x x x
Sec. 2. Declaration of Policy. -The foregoing provision echoes Section 3, Article X of the 1987 Constitution, which reads:ChanRoblesVirtualawlibrary
(a) It is hereby declared the policy of the State that the territorial and political subdivisions of the State shall enjoy genuine and meaningful local autonomy to enable them to attain their fullest development as self-reliant communities and make them more effective partners in the attainment of national goals. Toward this end, the State shall provide for a more responsive and accountable local government structure instituted through a system of decentralization whereby local government units shall be given more powers, authority, responsibilities, and resources. The process of decentralization shall proceed from the national government to the local government units.
(b) It is also the policy of the State to ensure the accountability of local government units through the institution of effective mechanisms of recall, initiative and referendum.
(c) It is likewise the policy of the State to require all national agencies and offices to conduct periodic consultations with appropriate local government units, non governmental and people's organizations, and other concerned sectors of the community before any project or program is implemented in their respective jurisdictions.55chanroblesvirtuallawlibrary
Sec. 3. The Congress shall enact a local government code which shall provide for a more responsive and accountable local government structure instituted through a system of decentralization with effective mechanisms of recall, initiative, and referendum, allocate among the different local government units their powers, responsibilities, and resources, and provide for the qualifications, election, and appointment and removal, term, salaries, powers and functions and duties of local officials, and all other matters relating to the organization and operation of the local units.56chanroblesvirtuallawlibraryDecentralization is the devolution of national administration, not power, to local governments.57 One form of decentralization is devolution,58 which involves the transfer of powers, responsibilities, and resources for the performance of certain functions from the central government to the LGUs.59 It has been said that devolution is indispensable to decentralization.60chanrobleslaw
Art. 25. Responsibility for Delivery of Basic Services and Facilities. - The LGUs shall, in addition to their existing functions and responsibilities, provide basic services and facilities devolved to them covering, but not limited to, the following:Based from the above, Article 25 mandates that the health services to be provided by the LGUs must comply with the standards and criteria given by the DOH. It does not direct the DOH to create rules on how devolution of health services must be implemented.
chanRoblesvirtualLawlibraryx x x
Municipalityx x x
(c) Subject to the provisions of Rule XXIII on local health boards and in accordance with the standards and criteria of the Department of Health (DOH), provision of health services through: (1) Implementation of programs and projects on primary health care, maternal and child care, and communicable and non-communicable disease control services; (2) Access to secondary and tertiary health services; and (3) Purchase of medicines, medical supplies, and equipment needed to carry out the devolved health services.x x x
Sec. 17. General Provisions. -Section 18 (a)(l) merely excludes district hospitals in the NCR from the process of devolution as prescribed in Section 17. The former does not entirely prohibit devolution of health services in district hospitals in the NCR.
(a) The DOH shall devolve to LGUs concerned public health programs and projects and such health and medical packages as currently in place at the Integrated Provincial Health Offices, District Health Offices, City Health Offices, and Municipal Health Offices, including the barangay health stations as follows: x x x (3) Secondary health services are medical health services provided by some rural health units, infirmaries, district hospitals and out-patient departments of provincial hospitals. x x x
Sec. 18. Specific Provisions. - The devolution prescribed in the preceding section shall include the following:
chanRoblesvirtualLawlibrary
(a) Province (1) The Integrated Provincial Health Office including the provincial hospital, district health offices including district hospitals, Medicare and municipal hospitals. However, the district health offices in the National Capital Region including its district hospitals are not included in the devolution as prescribed herein. x x x64
Endnotes:
1 Under Rule 45 of the Rules of Court, rollo, pp. 33-57.
2Id. at 7-20; panned by Presiding Judge Marivic T. Balisi-Umali.
3Id. at 22.
4 Devolving the Taguig-Pateros District Hospital from the Department of Health to the City of Taguig; id. at 106.
5 An Act Establishing a One Hundred-Bed District Hospital in the Municipality of Taguig, Metro Manila, to be known as the Taguig-Pateros District Hospital, Appropriating Funds Therefor and for Other Purposes.
6 E.O. No. 567, Sec. 1.
7Rollo, pp. 120-121.
8Id. at 126-129.
9Id. at 112-115.
10Id. at 112.
11Id. at 8.
12Id. at 116.
13Id. at 8.
14Id. at 132.
15Id. at 58-74.
16Id. at 75-96.
17Id. at 94.
18Id. at 7.
19Id. at 143.
20Id. at 187-190.
21Id. at 191.
22Id. at 216-222.
23Id. at 222.
24Id. at 223-228, 229-255, 256-273.
25cralawred Id. at 18.
26Id.
27Id.
28Rollo, p. 19.
29Id. at 19-20.
30Id. at 289-299.
31Catipon, Jr. v. Japson, G.R. No. 191787, June 22, 2015, 759 SCRA 557, 573.
32Public Hearing Committee of the Laguna Lake Development Authority v. SM Prime Holdings, Inc., G.R. No. 170599, September 32, 2010, 631 SCRA 73, 79-80.
33Cudia v. The Superintendent of the Philippine Military Academy, G.R. No. 211362, February 24, 2015, 751 SCRA 469, 517-518.
34Rollo, pp. 47-49, 383-390.
35Id. at 49-51, 390-391.
36 The Magna Carta of Public Health Workers (1992).
37Rollo, pp. 45-46, 381-383.
38Id. at 311-319, 322-350.
39 CIVIL CODE, Art. 7.
40 Sec. 2. Executive Orders. - Acts of the President providing for rules of a general or permanent character in implementation or execution of constitutional or statutory power shall be promulgated in executive orders. (Chapter 2, Title I, Book III, Executive Order No. 292, otherwise known as the Administrative Code of 1987)
41Executive Secretary v. Southwing Heavy Industries, Inc., G.R. No. 164171, February 20, 2006, 482 SCRA 673, 686.
42Emphasis supplied.
43Civil Service Commission v. Yu, G.R. No. 189041, July 31, 2012, 678 SCRA 39, 48, citing Section 2 of the Local Government Code of 1991.
44Tondo Medical Center Employees Association v. Court of Appeals, G.R. No. 167324, July 17, 2007, 527 SCRA 746, 766-770.
45 G.R. No. 167324, July 17, 2007, 527 SCRA 746.
46 Redirecting the Functions and Operations of the Department of Health (1999).
47 G.R. No. 167324, July 17, 2007, 527 SCRA 746, 766-770.
48Id. at 770.
49 G.R. No. 160093, July 31, 2007, 528 SCRA 673.
50Pimentel, Jr. v. Ochoa, G.R. No. 195770, July 17, 2012, 676 SCRA 551, 558-559; THE LOCAL GOVERNMENT CODE OF 1991, Sec. 2.
51 CONSTITUTION, Art. VII, Sec. 17.
52Executive Secretary v. Southwing Heavy Industries, Inc., G.R. No. 164171, February 20, 2006, 482 SCRA 673, 692, citing Coconut Oil Refiners Association, Inc. v. Torres, G.R. No. 132527, July 29, 2005, 465 SCRA 47, 62-63.
53Executive Secretary v. Southwing Heavy Industries, Inc., supra at 698.
54Civil Service Commission v. Cortes, G.R. No. 200103, April 23, 2014, 723 SCRA 609, 614.
55 Underscoring supplied.
56 Underscoring supplied.
57Pimentel, Jr. v. Aguirre, G.R. No. 132988, July 19, 2000, 336 SCRA 201, 216.
58Disomangcop v. Datumanong, G.R. No. 149848, November 25, 2004, 444 SCRA 203, 233.
59League of Provinces of the Philippines v. Department of Environment and Natural Resources, G.R. No. 175368, April 11, 2013, 696 SCRA 190, 212.
60Tano v. Socrates, G.R. No. 110249, August 21, 1997, 278 SCRA 154, 180-181.
61Rollo, pp. 383-387.
The Chairman: x x x
We go to the next. Date of Effectivity. This Code shall take effect on January 1, 1992. Transfer of responsibility for the delivery of basic services of facilities to all the LGU[]s shall be completed six (6) months after the effectivity of this Code. Certain functions of national agencies and offices shall be devolved to local government units within six (6) months, after the effectivity of this Code. Ito bang nakalagay ngayon? In other words, maski na ang inilagay natin January 1st ang effectivity, actually mayruon pang six (6) months period na hihintayin. Six plus six. Why don't six we...
HON. P. GARCIA: In effect it will be one year?
THE CHAIRMAN: Ito'ng date of effectivity, eh. Ito ang highlights ng agreement natin with the Senate so far. Ang nakalagay dito sa date of effectivity, page 2 on your paper, page 2, No. 2. This Code shall take effect January 1, 1992, maliwanag yan. However the second paragraph meron ditong "transfer of responsibility for the delivery of basic services of facilities to all LGU[]s shall be completed six (6) months after the effectivity of this Code." That means to say July, 1992.
HON. P. GARCIA: I think this is an error.
THE CHAIRMAN: Ha? And then after, that certain functions of national agencies and offices shall be devolved to local government within six (6) months after the effectivity. Another six (6) months.
HON. DE PEDRO: No. no, that's not...
HON. P. GARCIA: Mr. Chairman, I pointed this out the last time we met, that the Code cannot have two effective dates.
THE CHAIRMAN: It's simultaneous, the way I see it.
HON. DE PEDRO: Eh, itong second, yung third paragraph d'yan, actually alternative ito dito sa second, parehong ibig sabihin n'yan eh. Transfer of responsibility for the delivery of basic services at saka yung certain functions of national agencies shall be devolved[,] parehong devolution yan eh.
CHAIRMAN: So what [you're] saying in effect... Teka muna, just a minute. Let me just clarify this. What Larry is saying, that paragraph 2 and paragraph 3 of N[o]. 2 are the same, they're in the alternative. Now, but be that as it may, it means that the Code does not really take effect on January 1st.
HON. DE PEDRO: It takes effect.
THE CHAIRMAN[:] On January 1st, but after January 1st you have to count six (6) months before the devolution of powers.
HON. DE PEDRO: In fact the devolution can take effect January 2, kaya lang completely six (6) months...
HON LAGUDA: This is a maximum time limit...
HON. DE PEDRO: Completion...
HON. LAGUDA: ...that we are giving.
THE CHAIRMAN: The completion shall be done in six (6) months.
THE CHAIRMAN: Yeah, this is within, oh, that makes sense now. It's not after. Now regarding that point, I know what's at the back of your mind, because personally, if you ask me, I wanted this Code to be effective in 1993, no, January 1st, 1993, because by that time all the local officials.... x x x
HON. DE PEDRO: Mr. Chairman, the Senate understands that the effectivity date is January 1, 1992.
THE CHAIRMAN: Yeah.
HON. DE PEDRO: And that's how they understand.
THE CHAIRMAN: Yeah.
HON. DE PEDRO: And that they understand it was being final by both panels.
THE CHAIRMAN: Yeah, precisely. Yeah, I just want to brief the members of the House Panel that we have to agree on that, we must be united behind that, and if this matter is brought to the floor for approval, let us not vacillate anymore, despite our personal opinions, no. Let's be united in this. Let's not waver for one bit. x x x
THE CHAIRMAN: What is the difference between the two paragraphs?
HON. P. GARCIA: Yeah. In the first paragraph, the transfer should be completed six (6) months after the effectivity of this Code. In other words, within six (6) months.
THE CHAIRMAN: Yes, correct.x x x
HON. DE PEDRO: Kung alin ang subject matter of devolution.
THE CHAIRMAN: Certain functions of national agencies and offices shall be devolved to Local Government Unit six (6) months after the effectivity of this Code.[] So generally within. But what are these functions that will take effect after six (6) months Larry, can we specify them?
HON. DE PEDRO: The same functions for the delivery of basic services....
HON. DE PEDRO: ...basic services for facilities referred to in the other paragraph. THE CHAIRMAN: Exactly the same.
HON. DE PEDRO: The same. Pinagsama natin yung basic services at saka yong devolved functions, pinagsama na yan, eh.
THE CHAIRMAN: What's the point of Congressman Garcia, Pabling, why is there a whale of difference between the two?
HON. GARCIA: There is a difference because devolution of functions would mean transfer the very basic services. And under the first paragraph, this has to be completed six (6) months after[]. In other words, the delivery must be within six (6) months after the effectivity, otherwise, you could not complete within six (6) if you do not start the process of delivery. Whereas, in the second paragraph, it say[s] here that the certain functions of national agencies and offices shall be devolved to local government units six (6) months after the effectivi[]ty of this order. Shall be devolved, it is pure juristic in sense and the point of devolution is six (6) months after.
HON. DE PEDRO: Now, we have to make a decision, Mr. Chairman, which version should we adopt. Because our understanding, that once the code takes effect, devolution shall also take effect. So, what's the use of having a code effective January 1 when the devolution is not there.
HON. GARCIA: One question, I wanted this clarified. Who sets the pace of devolution, is it the national government o[r] is it the LGU[]s?
THE CHAIRMAN: The LGU[]s themselves.
HON. DE PEDRO: Both Houses are provided for the creation of an Oversight Committe[e] or the Ad Hoc Committees which would take charge of the devolution process.
HON. GARCIA: So actually, it is not the LGU[]s, neither is it the national government, but this Ad Hoc Committee.
THE CHAIRMAN: Yes.x x x
62 Local Government Code of 1991.
Sec. 533. Formulation of Implementing Rules and Regulations. -
(a) Within one (1) month after the approval of this Code, the President shall convene the Oversight Committee as herein provided for. The said Committee shall formulate and issue the appropriate rules and regulations necessary for the efficient and effective implementation of any and all provisions of this Code, thereby ensuring compliance with the principles of Local autonomy as defined under the Constitution.
(b) The Committee shall be composed of the following:
chanRoblesvirtualLawlibrary(1) The Executive Secretary, who shall be the Chairman;
(2) Three (3) members of the Senate to be appointed by the President of the Senate, to include the Chairman of the Committee on Local Government;
(3) Three (3) members of the House of Representatives to be appointed by the Speaker, to include the Chairman of the Committee on Local Government;
(4) The Cabinet, represented by the following:
chanRoblesvirtualLawlibrary (i) Secretary of the Interior and Local Government;
(ii) Secretary of Finance;
(iii) Secretary of Budget and Management; and cralawlawlibrary
(5) One (1) representative from each of the following:
chanRoblesvirtualLawlibrary (i) The League of Provinces;
(ii) The League of Cities;
(iii) The League of Municipalities; and cralawlawlibrary
(iv) The Liga ng mga Barangay.x x x
63 Prescribing the Implementing Rules and Regulations of the Local Government Code of 1991.
64Rollo, pp. 50-51. Emphasis omitted.
65Executive Secretary v. Southwing Heavy Industries, Inc., G.R. No. 164171, February 20, 2006, 482 SCRA 673, 699.
66Secretary of the Department of Transportation and Communications v. Mabalot, G.R. No. 138200, February 27, 2002, 378 SCRA 128, 140.
67Tondo Medical Center Employees Association v. Court of Appeals, supra note 45 at 773.