Case Digest: Navarro, et al. v.

Executive Secretary
Ermita
G.R. No. 180050 : May 12, 2010

RODOLFO G. NAVARRO, ET AL., Petitioners, v. EXECUTIVE SECRETARY EDUARDO ERMITA, ET

PERALTA,J.:

FACTS:
Before us are two Motions for Reconsideration of the Decision dated February 10, 2010 − one
filed by the Office of the Solicitor General (OSG) in behalf of public respondents, and the other
filed by respondent Governor Geraldine Ecleo Villaroman, representing the Province of Dinagat
Islands.

The arguments of the movants are similar. The grounds for reconsideration of Governor
Villaroman can be subsumed under the grounds for reconsideration of the OSG, which are as
follows:

I.

The Province of Dinagat Islands was created in accordance with the provisions of the 1987
Constitution and the Local Government Code of 1991. Article 9 of the Implementing Rules and
Regulations is merely interpretative of Section 461 of the Local Government Code.

II.

The power to create a local government unit is vested with the Legislature.The acts of the
Legislature and Executive in enacting into law RA 9355 should be respected as petitioners failed
to overcome the presumption of validity or constitutionality.

III.

Recent and prevailing jurisprudence considers the operative fact doctrine as a reason for
upholding the validity and constitutionality of laws involving the creation of a new local
government unit as in the instant case.

As regards the first ground, the movantsreiterate the same arguments in their respective
Comments that aside from the undisputed compliance with the income requirement, Republic
Act (R.A.) No. 9355, creating the Province ofDinagat Islands,has also complied with the
population and land area requirements.
The arguments are unmeritorious and have already been passed upon by the Court in its
Decision, ruling that R.A. No. 9355 is unconstitutional, since it failed to comply with either the
territorial or population requirement contained in Section 461 of R.A. No. 7160, otherwise
known as theLocal Government Code of 1991.

When the Dinagat Islands was proclaimed a new province onDecember 3,2006, it had an official
population of only 106,951based on the2000 Census ofPopulation conducted by the National
Statistics Office (NSO), which population is short of the statutory requirement of 250,000
inhabitants.

Although the Provincial Government of Surigao del Norte conducted a special census of
population inDinagatIslandsin 2003, which yielded a population count of 371,000, the result
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 (motherProvinceofSurigao del Norte) would not be reduced to less than the
minimum requirement prescribed by law at the time of the creation of the new province.

Less than a year after the proclamation of the new province, the NSO conducted
the2007Census of Population. The NSO certified that as ofAugust 1, 2007,DinagatIslandshad a
total population of only120,813,which wasstill below theminimum requirement of 250,000
inhabitants.

Based on the foregoing, R.A. No. 9355 failed to comply with the population requirement of
250,000 inhabitants as certified by the NSO.

Moreover, the land area of the province failed to comply with the statutory requirement
of2,000 square kilometers.R.A. No. 9355 specifically states that the Province of Dinagat Islands
contains an approximate land area of802.12 square kilometers. This was not disputed by the
respondent Governor of the Province of Dinagat Islands in her Comment.She and the other
respondents instead asserted that the province, which is composed of more than one island, is
exempted from theland area requirementbased on the provision in the Rules and Regulations
Implementing the Local Government Code of 1991 (IRR), specifically paragraph 2 of Article
9which states that [t]he land area requirement shall not apply where the proposed province is
composed of one (1) or more islands.The certificate of compliance issued by the
LandsManagement Bureau was also based on the exemption under paragraph 2, Article 9 of the
IRR.

However, the Court held thatparagraph 2 of Article 9 of the IRRis null and void, because the
exemption is not found in Section 461 of the Local Government Code. There is no dispute that
in case of discrepancy between the basic law and the rules and regulations implementing the
said law, the basic law prevails, because the rules and regulations cannot go beyond the terms
and provisions of the basic law.
The movants now argue that the correct interpretation of Section 461 of the Local Government
Code is the one stated in the Dissenting Opinion ofAssociate Justice Antonio Eduardo B.
Nachura.

In his Dissenting Opinion, Justice Nachura agrees that R.A. No. 9355 failed to comply with the
population requirement.However, he contends that the Province ofDinagat Islands did not fail
to comply with the territorial requirementbecause it is composed ofa group of islands; hence, it
is exempt from compliance not only with the territorial contiguity requirement, but also with
the 2,000-square-kilometer land area criterion inSection 461 of the Local Government Code.

He argues that the whole paragraph on contiguity and land area in paragraph (a) (i) above is the
one being referred to in the exemption from the territorial requirement in paragraph (b). Thus,
he contends that if the province to be created is composed of islands, like the one in this case,
then, its territory need not be contiguous and need not have an area of at least 2,000 square
kilometers. He asserts that this is because as the law is worded, contiguity and land area are not
two distinct and separate requirements, but they qualify each other. An exemption from one of
the two component requirements in paragraph (a) (i) allegedly necessitates an exemption from
the other component requirement, because the non-attendance of one results in the absence
of a reason for the other component requirement to effect a qualification.

ISSUE: Whether the correct interpretation of Section 461 of the Local Government Code is the
one stated in the Dissenting Opinion ofAssociate Justice Antonio Eduardo B. Nachura.

HELD: The Court is not persuaded.

POLITICAL LAW: general powers and attributes of local government units

SEC. 7.Creation and Conversion. As a general rule, the creation of a local government unit or its
conversion from one level to another levelshall be based onverifiableindicatorsof viability and
projected capacity to provide services,to wit:

(a)Income. It must be sufficient, based on acceptable standards, to provide for all essential
government facilities and services and special functions commensurate with the size of its
population, as expected of the local government unit concerned;

(b)Population. It shall be determined as the total number of inhabitants within the territorial
jurisdiction of the local government unit concerned; and

(c)Land area. It must be contiguous, unless it comprises two (2) or more islands, or is separated
by a local government unit independent of the others; properly identified by metes and bounds
with technical descriptions;andsufficient to provide for such basic services and facilities to meet
the requirements of its populace.
Compliance with the foregoing indicators shall be attested to by the Department of Finance
(DOF), the National Statistics Office (NSO), and the Lands Management Bureau (LMB) of the
Department of Environment and Natural Resources (DENR).

POLITICAL LAW: requirements for land area

Itmust be emphasized that Section 7 above, which provides for the generalruleinthecreation of
a local government unit, states in paragraph (c)thereof that the land area must be
contiguousandsufficient to provide for such basic services and facilities to meet the
requirements of its populace.

Therefore, there are two requirements for land area:(1) the land area must be contiguous; and
(2) the land area must be sufficient to provide for such basic services and facilities to meet the
requirements of its populace.A sufficient land area in the creation of a province is at least 2,000
square kilometers, as provided by Section 461 of the Local Government Code .

Thus, Section 461 of the Local Government Code, providing the requisites for the creation of a
province, specifically states the requirement of acontiguousterritoryofat leasttwo thousand
(2,000) square kilometers.

Hence, contrary to the arguments of both movants, the requirement of a contiguous territory
and the requirement of a land area of at least 2,000square kilometers aredistinctand separate
requirements for landarea under paragraph (a) (i) of Section 461 and Section 7 (c) of the Local
Government Code.

POLITICAL LAW: exemption from the requirement of territorial contiguity

However, paragraph (b) of Section 461 provides two instances ofexemption from the
requirement of territorial contiguity, thus:

(b)The territoryneed not be contiguousif it comprises two(2)or more islands,or is separated

Contrary to the contention of the movants, the exemption above pertains only to the
requirement of territorial contiguity.It clearly states that the requirement of territorial
contiguity may be dispensed with in the case of a province comprisingtwo or more islands, or is
separated by a chartered city or cities which do not contribute to the income of the province.

Nowhere in paragraph (b) is it expressly stated or may it be implied that when a province is
composed of two or more islands, or when theterritory of a province is separated by a
chartered city or cities, such province need not comply with the land area requirement of at
least 2,000 square kilometers or the requirement in paragraph (a) (i) of Section 461of the Local
Government Code.
Where the law is free from ambiguity, the court may not introduce exceptions or conditions
where none is provided from considerations of convenience, public welfare, or for any laudable
purpose; neither may it engraft into the law qualifications not contemplated, nor construe its
provisions by taking into account questions of expediency, good faith, practical utility and other
similar reasons so as to relax non-compliance therewith. Where the law speaks in clear and
categorical language, there is no room for interpretation, but only for application.

Moreover, the OSG contends that since the power to create a local government unit is vested
with the Legislature, the acts of the Legislature and the Executive branch in enacting into law
R.A. No. 9355 should be respected as petitioners failed to overcome the presumption of validity
or constitutionality.

The contention lacks merit.

Section 10, Article X of the Constitution States:

SEC. 10.No province, city, municipality, orbarangaymay becreated, divided, merged, abolished,
or its boundary substantially altered, exceptin accordance with the criteria established in the
local government codeand subject to approval by a majority of the votes cast in a plebiscite in
the political units directly affected.

As the law-making branch of the government, indeed, it was the Legislature that imposed the
criteria for the creation of a province as contained in Section 461 of the Local Government
Code.No law has yet been passed amending Section 461 of the Local Government Code, so only
the criteria stated therein are the bases for the creation of a province.The Constitution clearly
mandates that the criteria in the Local Government Code must be followed in the creation of a
province; hence, any derogation of or deviation from the criteria prescribed in the Local
Government Code violates Section 10, Article X of the Constitution.

Contrary to the contention of the movants, the evidence on record proved that R.A. No. 9355
failed to comply with either thepopulation or territorial requirements prescribed in Section 461
of the Local Government Code for the creation of the Province of Dinagat Islands; hence, the
Court declared R.A. No. 9355 unconstitutional.
WHEREFORE, in view of the foregoing, the Motions for Reconsideration of the Decision dated
February 10, 2010 are hereby DENIED for lack of merit.