GRSI Copyrightregno N94-027G.R. No. L-50908 January !" !984 #$R% C&NC'(CI&N )$*+IS+$" '+ $L. ,-. $L.

.R'/& L. J*INI&" '+ $L. Repu01i2 o3 the (hi1ippineS*(R'#' C&*R+ #ani1a 'N )$NC G.R. No. L-50908 January !" !984

#$R% C&NC'(CI&N )$*+IS+$ an4 'NRI5*' /. )$*+IS+$" petitioner-" ,-. $L.R'/& L. J*INI&" R&#'& .. '/* an4 .I/'L 6. R$#&S" re-pon4ent-. #ary Con2ep2ion )auti-ta 3or an4 in hi- o7n 0eha13. +he So1i2itor Genera1 3or re-pon4ent-. .'RN$N/&" C.J.8p +he ,a1i4ity o3 an energy 2on-er,ation 9ea-ure" Letter o3 In-tru2tion No. 8:9" i--ue4 on #ay !" !979 the re-pon-e to the protra2te4 oi1 2ri-i- that 4ate- 0a2; to !974 i- put in i--ue in thi- prohi0ition pro2ee4ing 3i1e4 0y petitioner-" -pou-e- #ary Con2ep2ion )auti-ta an4 'nri<ue /. )auti-ta" 3or 0eing a11ege41y ,io1ati,e o3 the 4ue pro2e-- an4 e<ua1 prote2tion guarantee- ! o3 the Con-titution. +he u-e o3 pri,ate 9otor ,ehi21e- 7ith = an4 '= p1ate- on 7ee;-en4- an4 ho1i4ay- 7a- 0anne4 3ro9 >?!2800@ a.9. Satur4ay 9orning to 5800 a.9. #on4ay 9orning" or !800 a.9. o3 the ho1i4ay to 5800 a.9. o3 the 4ay a3ter the ho1i4ay.> 2 #otor ,ehi21e- o3 the 3o11o7ing 21a--i3i2ation- are eAe9pte48 BaC S BSer,i2eCD B0C + B+ru2;CD BeC /(L B/ip1o9ati2CD B4C CC BCon-u1ar Corp-CD BeC +C B+ouri-t Car-C. (ur-uant thereto" re-pon4ent $13re4o L. Juinio" then #ini-ter o3 (u01i2 Eor;-" +ran-portation an4 Co99uni2ation- an4 re-pon4ent Ro9eo (. '4u" then Co99i--ioner o3 Lan4 +ran-portation Co99i--ion i--ue4 on June !!" !979" #e9oran4u9 Cir2u1ar No. 9" 7hi2h i9po-e4 >the pena1tie- o3 3ine" 2on3i-2ation o3 ,ehi21e an4 2an2e11ation o3 regi-tration on o7ner- o3 the a0o,e--pe2i3ie4 ,ehi21e-> 3oun4 ,io1ating -u2h Letter o3 In-tru2tion. 4 It 7a- then a11ege4 0y petitioner- that >7hi1e the purpo-e 3or the i--uan2e o3 the L&I 8:9 i- 1au4a01e" to 7it" energy 2on-er,ation" the pro,i-ion 0anning the u-e o3 = an4 '= ?,ehi21e-@ i- un3air" 4i-2ri9inatory" ?a9ounting to an@ ar0itrary 21a--i3i2ation> an4 thu- in 2ontra,ention o3 the e<ua1 prote2tion 21au-e. 5 #oreo,er" 3or the9" -u2h Letter o3 In-tru2tion i- a 4enia1 o3 4ue pro2e--" 9ore -pe2i3i2a11y" >o3 their right to u-e an4 enFoy their pri,ate property an4 o3 their 3ree4o9 to tra,e1 an4 ho14 3a9i1y gathering-" reunion- an4 outing- on 7ee;-en4- an4 ho1i4ay-"> in,iting attention to the 3a2t that other- not in21u4e4 in the 0an enFoying >unre-tri2te4

3ree4o9.> : It 7ou14 3o11o7" -o they 2onten4 that #e9oran4u9 Cir2u1ar No. 9 i9po-ing pena1tie- o3 3ine" 2on3i-2ation o3 the ,ehi21e an4 2an2e11ation o3 1i2en-e i1i;e7i-e un2on-titutiona1" 3or 0eing ,io1ati,e o3 the 4o2trine o3 >un4ue 4e1egation o3 1egi-1ati,e po7er.> 7 It i- to 0e note4 that -u2h #e9oran4u9 Cir2u1ar 4oe- not i9po-e the pena1ty o3 2on3i-2ation 0ut 9ere1y that o3 i9poun4ing" 3ine" an4 3or the thir4 o33en-e that o3 2an2e11ation o3 2erti3i2ate o3 regi-tration an4 3or the re-t o3 the year or 3or ninety 4ay- 7hi2he,er i- 1onger. +hi- Court ga,e 4ue 2our-e to the petition re<uiring re-pon4ent to an-7er. +here 7aa49i--ion o3 the 3a2t- a- -u0-tantia11y a11ege4 eA2ept" a- pre,iou-1y note4" that the 0an -tart- at !2800 a.9. rather than !800 a.9. o3 a Satur4ay or o3 a ho1i4ay an4 a- to the 9ention o3 a Ei11yG- Hai-er Feep 0eing regi-tere4 in the na9e o3 a 2ertain +ere-ita *r0ina" a0out 7hi2h re-pon4ent- ha4 no ;no71e4ge. +here 7a- a 4enia1 o3 the a11egation- that the 21a--i3i2ation o3 ,ehi21e- into hea,y = an4 eAtra hea,y B'=C on the other han4 an4 1ight an4 0anta9 on the other han4 7a- ,io1ati,e o3 e<ua1 prote2tion an4 the regu1ation a- to the u-e o3 the 3or9er 2ar- on the 4ate- -pe2i3ie4 a tran-gre--ion o3 4ue pro2e--. +he an-7er 1i;e7i-e 4enie4 that there 7a- an un4ue 4e1egation o3 1egi-1ati,e po7er" re3eren2e 0eing 9a4e to the Lan4 +ran-portation an4 +ra33i2 Co4e. 8 +here 7a- a1-o a pro2e4ura1 o0Fe2tion rai-e4" na9e1y" that 7hat i- -ought a9ount- at 9o-t to an a4,i-ory opinion rather than an aFu4i2ation o3 a 2a-e or 2ontro,er-y. (etitioner- 3i1e4 a 9otion to 0e a11o7e4 to rep1y to the an-7er. It 7a- grante4. +he rep1y" 2on-i4ering it- eAhau-ti,e 2hara2ter -er,ing a- it- 9e9oran4u9" -tre--e4 ane7 7hat it e9pha-iIe4 a- the ar0itrary" unrea-ona01e" an4 oppre--i,e a-pe2t- o3 the 2ha11enge4 Letter o3 In-tru2tion an4 #e9oran4u9 Cir2u1ar No. 9. It 4i-pute4 7hat it 2hara2teriIe4 a- an >erroneou- an4 ar0itrary pre-u9ption that hea,y 2ar o7ner- unne2e--ari1y u-e an4 there3ore 7a-te ga-o1ine 7hene,er they 4ri,e their 2ar- on 7ee;-en4- an4 ho1i4ay-D> 9 it -tig9atiIe4 the 0an a- 4e3eating it- >a,o7e4 purpo-e in the 2a-e o3 the a331uent 7ho o7n not on1y hea,y 1i9ou-ine- 0ut a1-o 9any -9a11 2ar- ?a-@ they 9ay 0e 2o9pe11e4 to u-e at 1ea-t t7o -9a11 2ar-D> !0 re3erre4 to the high 2o-t o3 taAi- or other pu01i2 tran-port- 3or tho-e >not a01e to a33or4 eApen-i,e -9a11 2ar- ?po--i01y@ on1y one hea,y an4 po--i01e o14 9o4e1D> !! 2ite4 the 2a-e o3 >9any eight 2y1in4er ,ehi21e- 7hi2h 0e2au-e o3 their 7eight ha,e 0een regi-tere4 a- 1ight 0ut in 3a2t 2on-u9e 9ore or a- 9u2h ga-o1ine a- the 0anne4 ,ehi21e-.> !2 +heir 2on21u-ion i- that >the 0an i9po-e4" in re-u1t an4 e33e2t i- 21a-1egi-1ation.> ! +he partie- 7ere re<uire4 to -u09it 9e9oran4a. Re-pon4ent- 4i4 -o 0ut not petitioner-. +hey re1ie4 on their rep1y to the an-7er a- note4" a rather 2o9prehen-i,e p1ea4ing. .or rea-on- to 0e -et 3orth" thi- Court ho14- that the petition 2annot pro-per. !. .ir-t a- to the pro2e4ura1 o0Fe2tion. In the 9e9oran4u9 3or re-pon4ent-" one o3 the i--ue- rai-e4 7a- 7hether >the po7er o3 Fu4i2ia1 re,ie7 9ay 0e in,o;e4 2on-i4ering the ina4e<ua2y o3 the re2or4 an4 the high1y a0-tra2t an4 a2a4e9i2 <ue-tion- rai-e4 0y the petitioner-.> !4 It i- ina22urate to -ay that the re2or4 i- ina4e<uate. It 4oe- not a49it o3 4ou0t that the 0an app1ie- to petitioner- 7ho are >the regi-tere4 o7ner- o3 an eight 2y1in4er !9:9 )ui2;" an4 the ,en4ee- o3 a -iA 2y1in4er Ei11yG- ;ai-er Feep" 7hi2h are 0oth 21a--i3ie4 a- hea,y or =.> !5 +o that eAtent" there3ore" the en3or2e9ent o3 the a--ai1e4

Letter o3 In-tru2tion 7i11 a9ount to a 4epri,ation o3 7hat other7i-e 7ou14 0e a ,a1i4 eAer2i-e o3 a property right. +hu- they 3a11 -<uare1y 7ithin >the un2ha11enge4 ru1e> a- to 7ho 9ay rai-e a 2on-titutiona1 <ue-tion" na9e1y" to <uote the 1anguage o3 Ju-ti2e Laure1 in the 1ea4ing 2a-e o3 (eop1e ,. 6era" !: >that the per-on 7ho i9pugn- the ,a1i4ity o3 a -tatute 9u-t ha,e a per-ona1 an4 -u0-tantia1 intere-t in the 2a-e -u2h that he ha- -u-taine4" or 7i11 -u-tain 4ire2t inFury a- a re-u1t o3 it- en3or2e9ent. !7 #oreo,er" that ru1e ha- 0een 2on-i4era01y re1aAe4. !8 +he <ue-tion then i- neither a0-tra2t nor a2a4e9i2 a- 2onten4e4 0y re-pon4ent-. 2. +here i-" ho7e,er" thi- 3or9i4a01e o0-ta21e that 2on3ront- petitioner-. Ehat they -ee; i- 3or thi- Court to ho14 that a Letter o3 In-tru2tion" a regu1atory 9ea-ure pre2i-e1y ena2te4 to 2ope 7ith the -eriou- an4 gra,e pro01e9 o3 energy 2on-er,ation" i- ,oi4 on it3a2e. Su2h a ta-; i- ren4ere4 unu-ua11y 4i33i2u1t 0y 7hat ha- 0een re3erre4 to 0y Ju-ti2e Laure1 in the 1ea4ing 2a-e o3 $ngara ,. '1e2tora1 Co99i--ion !9 a- the >pre-u9ption o3 2on-titutiona1ity> an4 0y the -a9e Furi-t in the 2a-e o3 (eop1e ,. 6era 20 in -1ight1y 4i33erent 7or4- >a pre-u9ption that -u2h an a2t 3a11- 7ithin 2on-titutiona1 1i9itation-.> +here i- nee4 then 3or a 3a2tua1 3oun4ation o3 in,a1i4ity. In the 1anguage o3 'r9ita#a1ate =ote1 J #ote1 &peration- $--o2iation" In2. ,. City #ayor or #ani1a8 >It a49ito3 no 4ou0t there3ore that there 0eing a pre-u9ption o3 ,a1i4ity" the ne2e--ity 3or e,i4en2e to re0ut it i- una,oi4a01e" un1e-- the -tatute or or4inan2e i- ,oi4 on it- 3a2e" 7hi2h i- not the 2a-e here. +he prin2ip1e ha- 0een no7here 0etter eApre--e4 than in the 1ea4ing 2a-e o3 &GGor9an J %oung ,. =art3or4 .ire In-uran2e Co." 7here the $9eri2an Supre9e Court through Ju-ti2e )ran4ei- ter-e1y an4 -u22in2t1y -u99e4 up the 9atter thu-8 G+he -tatute here <ue-tione4 4ea1- 7ith a -u0Fe2t 21ear1y 7ithin the -2ope o3 the po1i2e po7er. Ee are a-;e4 to 4e21are it ,oi4 on the groun4 that the -pe2i3i2 9etho4 o3 regu1ation pre-2ri0e4 i- unrea-ona01e an4 hen2e 4epri,e- the p1ainti33 o3 4ue pro2e-- o3 1a7. $- un4er1ying <ue-tion- o3 3a2t 9ay 2on4ition the 2on-titutiona1ity o3 1egi-1ation o3 thi- 2hara2ter" the pre-u9ption o3 2on-titutiona1ity 9u-t pre,ai1 in the a0-en2e o3 -o9e 3a2tua1 3oun4ation o3 re2or4 3or o,erthro7ing the -tatute.G > 2! . It i- true" o3 2our-e" that there 9ay 0e in-tan2e- 7here a po1i2e po7er 9ea-ure 9ay" 0e2au-e o3 it- ar0itrary" oppre--i,e or unFu-t 2hara2ter" 0e he14 o33en-i,e to the 4ue pro2e-- 21au-e an4" there3ore" 9ay" 7hen 2ha11enge4 in an appropriate 1ega1 pro2ee4ing" 0e 4e21are4 ,oi4 on it- 3a2e. +hi- i- not one o3 the9. $ re2ita1 o3 the 7herea- 21au-e- o3 the Letter o3 In-tru2tion 9a;e- it 21ear. +hu-8 >?Eherea-@" 4e,e1op9ent- in the internationa1 petro1eu9 -upp1y -ituation 2ontinue to 3o11o7 a tren4 o3 1i9ite4 pro4u2tion an4 -pira11ing pri2e- there0y pre21u4ing the po--i0i1ity o3 i99e4iate re1ie3 in -upp1ie7ithin the 3ore-eea01e 3utureD ?Eherea-@" the un2ertainty o3 3ue1 -upp1y a,ai1a0i1ity un4er-2ore- a 2o9pe11ing nee4 3or the a4option o3 po-iti,e 9ea-ure- 4e-igne4 to in-ure the ,ia0i1ity o3 the 2ountryG- e2ono9y an4 -u-tain it- 4e,e1op9enta1 gro7thD ?Eherea-@" to 2u-hion the e33e2t o3 in2rea-ing oi1 pri2e- an4 a,oi4 3ue1 -upp1y 4i-ruption-" it ii9perati,e to a4opt a progra9 4ire2te4 to7ar4- the Fu4i2iou- u-e o3 our energy re-our2e2o9p1e9ente4 7ith inten-i3ie4 2on-er,ation e33ort- an4 e33i2ient uti1iIation thereo3D K K K.> 22 +hat i- un4enia01e i- that the a2tion ta;en i- an appropriate re-pon-e to a pro01e9 that pre--e- urgent1y 3or -o1ution. It 9ay not 0e the on1y a1ternati,e" 0ut it-

rea-ona01ene-- i- i99e4iate1y apparent. +hu-" to repeat" -u0-tanti,e 4ue pro2e--" 7hi2h i- the epito9e o3 rea-ona01ene-- an4 3air p1ay" i- not ignore4" 9u2h 1e-- in3ringe4. 4. In the interp1ay 0et7een -u2h a 3un4a9enta1 right an4 po1i2e po7er" e-pe2ia11y -o 7here the a--ai1e4 go,ern9enta1 a2tion 4ea1- 7ith the u-e o3 oneG- property" the 1atter ia22or4e4 9u2h 1ee7ay. +hat i- -ett1e4 1a7. Ehat i- 9ore" it i- goo4 1a7. /ue pro2e--" there3ore" 2annot 0e ,a1i41y in,o;e4. $- -tre--e4 in the 2ite4 'r9ita-#a1ate =ote1 4e2i-ion8 >+o ho14 other7i-e 7ou14 0e to un4u1y re-tri2t an4 narro7 the -2ope o3 po1i2e po7er 7hi2h ha- 0een proper1y 2hara2teriIe4 a- the 9o-t e--entia1" in-i-tent an4 the 1ea-t 1i9ita01e o3 po7er-" eAten4ing a- it 4oe- Gto a11 the great pu01i2 nee4-.G It 7ou14 0e" to paraphra-e another 1ea4ing 4e2i-ion" to 4e-troy the ,ery purpo-e o3 the -tate i3 it 2ou14 0e 4epri,e4 or a11o7e4 it-e13 to 0e 4epri,e4 o3 it- 2o9peten2e to pro9ote pu01i2 hea1th" pu01i2 9ora1-" pu01i2 -a3ety an4 the genera1 7e13are. Negati,e1y put" po1i2e po7er i- Gthat inherent an4 p1enary po7er in the State 7hi2h ena01e- it to prohi0it a11 that i- hurt3u1 to the 2o93ort" -a3ety" an4 7e13are o3 -o2iety.G > 2 5. +he 4ue pro2e-- <ue-tion ha,ing 0een 4i-po-e4 o3" there i- -ti11 the o0Fe2tion 0a-e4 on the e<ua1 prote2tion 21au-e to 0e 2on-i4ere4. $ go,ern9enta1 a2t 9ay not 0e o33en-i,e to the 4ue pro2e-- 21au-e" 0ut 9ay run 2ounter to -u2h a guarantee. Su2h i- the 2a-e 7hen there i- no rationa1 0a-i- 3or the 21a--i3i2ation 3o11o7e4. +hat i- the point rai-e4 0y petitioner-. .or the9" there i- no rationa1 Fu-ti3i2ation 3or the 0an 0eing i9po-e4 on ,ehi21e- 21a--i3ie4 a- hea,y B=C an4 eAtra-hea,y B'=C" 3or pre2i-e1y tho-e o7ne4 0y the9 3a11 7ithin -u2h 2ategory. +e-te4 0y the app1i2a01e -tan4ar4 that 9u-t 0e -ati-3ie4 to a,oi4 the 2harge o3 a 4enia1 o3 e<ua1 prote2tion" the o0Fe2tion o3 petitioner- i- -ho7n to 0e 1a2;ing in 9erit. Su2h a 21a--i3i2ation on it- 3a2e 2annot 0e 2hara2teriIe4 a- an a33ront to rea-on. $ 1ega1 nor9 a22or4ing to J.#. +ua-on J Co." In2. ,-. Lan4 +enure $49ini-tration" 24 >7hether e90o4ie4 in a ru1e" prin2ip1e" or -tan4ar4" 2on-titute- a 4e3en-e again-t anar2hy at one eAtre9e an4 tyranny at the other. +here0y" peop1e 1i,ing together in a 2o99unity 7ith it- 9yria4 an4 2o9p1eA pro01e9- 2an 9ini9iIe the 3ri2tion an4 re4u2e the 2on31i2t-" to a--ure" at the ,ery 1ea-t" a pea2e3u1 or4ering o3 eAi-ten2e. +he I4ea1 -ituation i- 3or the 1a7G- 0ene3it- to 0e a,ai1a01e to a11" that none 0e p1a2e4 out-i4e the -phere o3 it- 2o,erage. &n1y thu- 2ou14 2han2e an4 3a,or 0e eA21u4e4 an4 the a33airo3 9en go,erne4 0y that -erene an4 i9partia1 uni3or9ity" 7hi2h i- o3 the ,ery e--en2e o3 the I4ea o3 1a7. +he a2tua1" gi,en thing- a- they are an4 1i;e1y to 2ontinue to 0e" 2annot approAi9ate the I4ea1. Nor i- the 1a7 -u-2epti01e to the reproa2h that it 4oe- not ta;e into a22ount the rea1tie- o3 the -ituation. K K K +o a--ure that the genera1 7e13are 0e pro9ote4" 7hi2h i- the en4 o3 1a7" a regu1atory 9ea-ure 9ay 2ut into the right- to 1i0erty an4 property. +ho-e a4,er-e1y a33e2te4 9ay un4er -u2h 2ir2u9-tan2e- in,o;e the e<ua1 prote2tion 21au-e on1y i3 they 2an -ho7 that the go,ern9enta1 a2t a--ai1e4" 3ar 3ro9 0eing in-pire4 0y the attain9ent o3 the 2o99on 7ea1 7a- pro9pte4 0y the -pirit o3 ho-ti1ity" or at the ,ery 1ea-t" 4i-2ri9ination that 3in4- no -upport in rea-on. It -u33i2e- then that the 1a7- operate e<ua11y an4 uni3or91y on a11 per-on- un4er -i9i1ar 2ir2u9-tan2e- or that a11 per-on- 9u-t 0e treate4 in the -a9e 9anner" the 2on4ition- not 0eing 4i33erent" 0oth in the pri,i1ege- 2on3erre4 an4 the 1ia0i1itie- i9po-e4. .a,oriti-9 an4 un4ue pre3eren2e 2annot 0e a11o7e4. .or the prin2ip1e i- that e<ua1 prote2tion an4 -e2urity -ha11 0e gi,en to e,ery per-on un4er 2ir2u9-tan2e-" 7hi2h i3 not I4enti2a1 are ana1ogou-. I3 1a7 0e 1oo;e4

upon in ter9- o3 0ur4en or 2harge-" tho-e that 3a11 7ithin a 21a-- -hou14 0e treate4 in the -a9e 3a-hion" 7hate,er re-tri2tion- 2a-t on -o9e in the group e<ua11y 0in4ing on the re-t.> 25 :. Nor 4oe- it 9i1itate again-t the ,a1i4ity o3 the Letter o3 In-tru2tion Fu-t 0e2au-e the 0an i9po-e4 4oe- not go a- 3ar a- it 2ou14 ha,e an4 there3ore 2ou14 0e 1e-- e33i2a2iouin 2hara2ter. +hat 7a- the -o1ution 7hi2h 3or the (re-i4ent eApre--ing a po7er ,a1i41y 1o4ge4 in hi9" re2o99en4e4 it-e13. +here 7a- a -ituation that 2a11e4 3or a 2orre2ti,e 9ea-ure. =e 4e2i4e4 that 7hat 7a- i--ue4 0y hi9 7ou14 4o Fu-t that or" at the ,ery 1ea-t" he1p in ea-ing the -ituation. +hat it 4i4 not 2o,er other 9atter- 7hi2h 2ou14 ,ery 7e11 ha,e 0een regu1ate4 4oe- not 2a11 3or a 4e21aration o3 nu11ity. +he (re-i4ent" to paraphra-e LutI ,. $raneta" 2: >i- not re<uire4 0y the Con-titution to a4here to the po1i2y o3 a11 or none.> 27 It i- <uite o0,iou- then that no e<ua1 prote2tion <ue-tion ari-e-. 7. It 9ay not 0e a9i-- to re3er to a !98! $9eri2an Supre9e Court 4e2i-ion" #inne-ota ,. C1o,er Lea3 Crea9ery Co9pany. 28 Re-pon4ent a1ong 7ith -e,era1 other 0u-ine-- 2orporation- a4,er-e1y a33e2te4 in,o1,e4 in the 9anu3a2ture an4 uti1iIation o3 p1a-ti2 9i1; 2ontainer- 3i1e4 -uit in a #inne-ota 4i-tri2t 2ourt -ee;ing to enFoin en3or2e9ent o3 a #inne-ota -tatute 0anning the retai1 -a1e o3 9i1; in p1a-ti2 nonreturna01e" nonre3i11a01e 2ontainer-" 0ut per9itting -u2h -a1e in other nonreturna01e" nonre3i11a01e 2ontainer-" -u2h a- paper0oar4" 9i1; 2arton-. $3ter 2on4u2ting eAten-i,e e,i4entiary hearing-" the #inne-ota 2ourt enFoine4 en3or2e9ent o3 the -tatute" 3in4ing that it ,io1ate4 a9ong other- the e<ua1 prote2tion 21au-e o3 the .ourteenth $9en49ent to the .e4era1 Con-titution. +he #inne-ota Supre9e Court a33ir9e4. &n 2ertiorari" the *nite4 State- Supre9e Court re,er-e4" 7ith on1y Ju-ti2e Ste,en- 4i--enting. +he opinion 0y Ju-ti2e )rennan note4 that >proponent- o3 the 1egi-1ation argue4 that it 7ou14 pro9ote re-our2e 2on-er,ation" ea-e -o1i4 7a-te 4i-po-a1 pro01e9-" an4 2on-er,e energy.> 29 +hat -u33i2e4 3or the Court to 2on21u4e >that the 0an on p1a-ti2 nonreturna01e 9i1; 2ontainer0ear- a rationa1 re1ation to the StateG- o0Fe2ti,e-" an4 9u-t 0e -u-taine4 un4er the '<ua1 (rote2tion C1au-e.> 0 It 4oe- -ho7 that not7ith-tan4ing the >ne7 e<ua1 prote2tion approa2h> 7ith it- e9pha-i- on >-u-pe2t 21a--i3i2ation> an4 >3un4a9enta1 right- an4 intere-t- -tan4ar4"> a 2on2ept -o a01y eApoun4e4 0y pro3e--or Gunther" the >rationa1 re1ation te-t> ! -ti11 retain- it- ,a1i4ity. Not that there 2ou14 0e any o0Fe2tion to the 21a--i3i2ation here 3o11o7e4 a- 0eing in any 7ay -u-2epti01e to -u2h a peForati,e eApre--ion a- >-u-pe2t> or that the a--ai1e4 Letter o3 In-tru2tion 4oe- not <ua1i3y un4er >the 3un4a9enta1 right- an4 intere-t-> -tan4ar4 8. +here 7a- -et 3orth in the petition 7hat 7ere re3erre4 to a- >other rea-ona01e 9ea-ure- 7hi2h the authoritie- 2on2erne4 7ith energy 2on-er,ation 2an ta;e i99e4iate1y" 7hi2h are in 3a2t a22epta01e an4 o0,iou-1y 2a11e4 3or an4 -hou14 ha,e 0een 4one 1ong ago" to 7it8 !. re<uire an4 e-ta01i-h taAi -tan4- e<uippe4 7ith e33i2ient te1ephone an4 2o99uni2ation -y-te9-D 2. -tri2t i9p1e9entation an4 o0-er,an2e o3 2argo tru2; hour- on 9ain arterie-D . -tri2t o0-er,an2e o3 tra33i2 ru1e-D 4. e33e2ti,e -o1ution o3 tra33i2 pro01e9- an4 4e2onge-tion o3 tra33i2 through rerouting an4 <ui2; repair o3 roa4an4 e33i2ient operation o3 4ou01e 4e2;er 0u-e-D 5. rationing o3 ga-o1ine to a,oi4 pani2 0uying an4 gi,e the pri,ate 2ar o7ner the option an4 re-pon-i0i1ity o3 4e2i4ing on the u-e

o3 hi- a11o2ationD :. a11o7 neon an4 e1e2tri2a11y 4e,i-e4 a4,erti-ing -ign- on1y 3ro9 3i,e oG21o2; p.9. to nine oG21o2; p.9. 7. prohi0it i99e4iate1y the i9portation o3 hea,y an4 1uAury 2ar- an4 -eriou-1y re-eAa9ine the 2ar 9anu3a2turing progra9.> 2 $49itte41y" -u2h 9ea-ure- are 2on4u2i,e to energy 2on-er,ation. +he <ue-tion 0e3ore u- ho7e,er i1i9ite4 to 7hether or not Letter o3 In-tru2tion 8:9 a- i9p1e9ente4 0y #e9oran4u9 Cir2u1ar No. 9 i- ,io1ati,e o3 2ertain 2on-titutiona1 right-. It goe- no 3urther than that. +he 4eter9ination o3 the 9o4e an4 9anner through 7hi2h the o0Fe2ti,e o3 9ini9iIing the 2on-u9ption o3 oi1 pro4u2t- 9ay 0e attaine4 i- 1e3t to the 4i-2retion o3 the po1iti2a1 0ran2he-. $0-ent there3ore the a11ege4 in3ringe9ent o3 2on-titutiona1 right-" 9ore pre2i-e1y the 4ue pro2e-- an4 e<ua1 prote2tion guarantee-" thi- Court 2annot a4Fu4ge Letter o3 In-tru2tion No. 8:9 a- tainte4 0y un2on-titutiona1ity. 9. It 7a- 1i;e7i-e 2onten4e4 that #e9oran4u9 Cir2u1ar No. 9" i--ue4 0y the then re-pon4ent #ini-ter o3 (u01i2 Eor;-" +ran-portation an4 Co99uni2ation-" an4 then re-pon4ent Lan4 +ran-portation Co99i--ioner" i9po-ing the pena1tie- >o3 3ine" 2on3i-2ation o3 ,ehi21e an4 2an2e11ation o3 1i2en-e i- 1i;e7i-e un2on-titutiona1"> petitioner- in,o;ing the prin2ip1e o3 non-4e1egation o3 1egi-1ati,e po7er. 4 +o that eAtent that a Letter o3 In-tru2tion 9ay 0e ,ie7e4 a- an eAer2i-e o3 the 4e2ree-9a;ing po7er o3 the (re-i4ent" then -u2h an argu9ent i- 3uti1e. I3" ho7e,er" ,ie7e4 a- a 2o9p1ian2e 7ith the 4uty to ta;e 2are that the 1a7- 0e 3aith3u11y eAe2ute4" a- a 2on-e<uen2e o3 7hi2h -u0or4inate eAe2uti,e o33i2ia1- 9ay in turn i--ue i9p1e9enting ru1e- an4 regu1ation-" then the o0Fe2tion 7ou14 proper1y 0e 2on-i4ere4 a- an u1tra ,irea11egation. +here i- thi- re1e,ant eA2erpt 3ro9 +eoAon ,. #e90er o3 the )oar4 o3 $49ini-trator-8 5 >!. +he re2ognition o3 the po7er o3 a49ini-trati,e o33i2ia1- to pro9u1gate ru1e- in the i9p1e9entation o3 the -tatute" ne2e--ari1y 1i9ite4 to 7hat ipro,i4e4 3or in the 1egi-1ati,e ena2t9ent" 9ay 0e 3oun4 in the ear1y 2a-e o3 *nite4 State,. )arria- 4e2i4e4 in !908. +hen 2a9e" in a !9!4 4e2i-ion" *nite4 State- ,. +upa-i #o1ina" a 4e1ineation o3 the -2ope o3 -u2h 2o9peten2e. +hu-8 G&3 2our-e the regu1ationa4opte4 un4er 1egi-1ati,e authority 0y a parti2u1ar 4epart9ent 9u-t 0e in har9ony 7ith the pro,i-ion- o3 the 1a7" an4 3or the -o1e purpo-e o3 2arrying into e33e2t it- genera1 pro,i-ion-. )y -u2h regu1ation-" o3 2our-e" the 1a7 it-e13 2an not 0e eAten4e4. So 1ong" ho7e,er" a- the regu1ation- re1ate -o1e1y to 2arrying into e33e2t the pro,i-ion- o3 the 1a7" they are ,a1i4.G In !9 :" in (eop1e ,. Santo-" thi- Court eApre--e4 it- 4i-appro,a1 o3 an a49ini-trati,e or4er that 7ou14 a9ount to an eA2e-- o3 the regu1atory po7er ,e-te4 in an a49ini-trati,e o33i2ia1. Ee rea33ir9e4 -u2h a 4o2trine in a !95! 4e2i-ion" 7here 7e again 9a4e 21ear that 7here an a49ini-trati,e or4er 0etray- in2on-i-ten2y or repugnan2y to the pro,i-ion- o3 the $2t" Gthe 9an4ate o3 the $2t 9u-t pre,ai1 an4 9u-t 0e 3o11o7e4.G Ju-ti2e )arrera" -pea;ing 3or the Court in 6i2toria- #i11ing Co9pany" In2. ,. So2ia1 Se2urity Co99i--ion" 2iting (ar;er a- 7e11 a- /a,i- 4i4 ter-e1y -u9 up the 9atter thu-8 G$ ru1e i0in4ing on ti1e 2ourt- -o 1ong a- the pro2e4ure 3iAe4 3or it- pro9u1gation i- 3o11o7e4 an4 it- -2ope i- 7ithin the -tatutory grante4 0y the 1egi-1ature" e,en i3 the 2ourt- are not in agree9ent 7ith the po1i2y -tate4 therein or it- innate 7i-4o9 K K K. &n the other han4" a49ini-trati,e interpretation o3 the 1a7 i- at 0e-t 9ere1y a4,i-ory" 3or it i- the 2ourt- that 3ina11y 4eter9ine 7hat the 1a7 9ean-.G It 2annot 0e other7i-e a- the Con-titution 1i9itthe authority o3 the (re-i4ent" in 7ho9 a11 eAe2uti,e po7er re-i4e-" to ta;e 2are that the 1a7- 0e 3aith3u11y eAe2ute4. No 1e--er a49ini-trati,e eAe2uti,e o33i2e or agen2y then 2an"

2ontrary to the eApre-- 1anguage o3 the Con-titution" a--ert 3or it-e13 a 9ore eAten-i,e prerogati,e.> : It 7a- a11ege4 in the $n-7er o3 So1i2itor Genera1 '-te1ito (. #en4oIa that Letter o3 In-tru2tion 8:9 an4 #e9oran4u9 Cir2u1ar No. 9 7ere a4opte4 pur-uant to the Lan4 +ran-portation an4 +ra33i2 Co4e. 7 It 2ontain- a -pe2i3i2 pro,i-ion a- to pena1tie-. 8 +hu-8 >.or ,io1ation o3 any pro,i-ion- o3 thi- $2t or regu1ationpro9u1gate4 pur-uant hereto" not herein0e3ore -pe2i3i2a11y puni-he4" a 3ine o3 not 1e-than ten nor 9ore than 3i3ty pe-o- -ha11 0e i9po-e4.> 9 #e9oran4u9 Cir2u1ar No. 9 2annot 0e he14 to 0e u1tra ,ire- a- 1ong a- the 3ine i9po-e4 i- not 1e-- than ten nor 9ore than 3i3ty pe-o-. $- to -u-pen-ion o3 regi-tration" 40 the Co4e" in-o3ar a- app1i2a01e" pro,i4e-8 >Ehene,er it -ha11 appear 3ro9 the re2or4- o3 the Co99i--ion that 4uring any t7e1,e-9onth perio4 9ore than three 7arning- 3or ,io1ation- o3 thi- $2t ha,e 0een gi,en to the o7ner o3 a 9otor ,ehi21e" or that the -ai4 o7ner ha- 0een 2on,i2te4 0y a 2o9petent 2ourt 9ore than on2e 3or ,io1ation o3 -u2h 1a7-" the Co99i--ioner 9ay" in hi- 4i-2retion" -u-pen4 the 2erti3i2ate o3 regi-tration 3or a perio4 not eA2ee4ing ninety 4ay- an4" thereupon" -ha11 re<uire the i99e4iate -urren4er o3 the nu90er p1ate- K K K.> 4! It 3o11o7- that 7hi1e the i9po-ition o3 a 3ine or the -u-pen-ion o3 regi-tration un4er the 2on4ition- therein -et 3orth i- ,a1i4 un4er the Lan4 +ran-portation an4 +ra33i2 Co4e" the i9poun4ing o3 a ,ehi21e 3in4- no -tatutory Fu-ti3i2ation. +o app1y that portion o3 #e9oran4u9 Cir2u1ar No. 9 7ou14 0e u1tra ,ire-. It 9u-t 1i;e7i-e 0e 9a4e 21ear that a pena1ty e,en i3 7arrante4 2an on1y 0e i9po-e4 in a22or4an2e 7ith the pro2e4ure re<uire4 0y 1a7. 42 E='R'.&R'" the petition i- 4i-9i--e4. $<uino" Guerrero" /e Ca-tro" #e1en2io-=errera" '-2o1in" Re1o,a an4 GutierreI" Jr." JJ." 2on2ur. #a;a-iar an4 Con2ep2ion J." too; no part.

Separate &pinion-

$)$/ S$N+&S" J." 4i--enting8 +he po7er o3 the State to re-tri2t the u-e o3 2ertain 9otor ,ehi21e- 4uring -tate4 4ay- an4 hour- a- a 3ue1--a,ing 9ea-ure i- to 9e in4u0ita01e. It i- an2hore4 on the po1i2e po7er o3 the State. .or thi- rea-on L&I No. 8:9 2annot 0e a--ai1e4 -u22e--3u11y a- ,io1ati,e o3 4ue pro2e-- an4 e<ua1 prote2tion guarantee- o3 the Con-titution. +here i- a1-o no <ue-tion a- to the po7er o3 the Co99i--ioner o3 Lan4 +ran-portation an4 the #ini-ter o3 (u01i2 Eor;-" +ran-portation an4 Co99uni2ation to i--ue #e9oran4u9 Cir2u1ar No. 9 on June !!" !979. +he 2ir2u1ar 7a- ne2e--ary to i9p1e9ent the L&I. )ut it 4oe- not 3o11o7 that the 2ir2u1ar i- 2o9p1ete1y i99une 3ro9 the taint o3 in3ir9ity.

I re3er to paragraph 4 o3 the 2ir2u1ar 7hi2h pro,i4e-" inter a1ia" 3or pena1tie- 2on-i-ting o3 3ine an4 -u-pen-ion or 2an2e11ation o3 the 2erti3i2ate o3 regi-tration 3or o7ner- o3 9otor ,ehi21e- ,io1ating the L&I. +hi- portion o3 the 2ir2u1ar i- 21ear1y i11ega1 3or the L&I ia0-o1ute1y an4 2o9p1ete1y 4e,oi4 o3 1ega1 -an2tion- an4 2on-e<uent1y the i9p1e9enting 2ir2u1ar 2annot pre-2ri0e the9. It i- e1e9entary that on1y the 1egi-1ature Bor the (re-i4ent in the eAer2i-e o3 hi- 1egi-1ati,e po7erC 2an pre-2ri0e pena1tie-. 'Ae2uti,e o33i2ia1- 7ho-e ta-; i- to en3or2e the 1a7 2an pre-2ri0e pena1tie- on1y i3 they are authoriIe4 to 4o -o 7ithin -pe2i3ie4 1i9it- 0y the 1egi-1ature. It i- 2onten4e4 0y the re-pon4ent- that the L&I an4 the i9p1e9enting 2ir2u1ar 7ere a4opte4 pur-uant to the Lan4 +ran-portation an4 +ra33i2 Co4e Repu01i2 $2t No. 4! :. +hi- 2ontention i- utter1y 0a-e1e--. L&I No. 8:9 2an 0e 2o9pare4 to a 9u1tip1e in4epen4ent1y targete4 0a11i-ti2 9i--i1e. It ta-;- ,ariou- agen2ie- o3 the go,ern9ent a- 3o11o7-8 !. +he #ini-try o3 'nergy -ha11 4uring the perio4 o3 tight -upp1y" 1i9it a- ne2e--ary" -a1e- o3 3ue1 pro4u2t- 0y oi1 2o9panie- an4 other out1et- to a11 2on-u9er- in21u4ing the go,ern9ent an4 the $r9e4 .or2e- o3 the (hi1ippine-. Initia11y -a1e- -ha11 0e 1i9ite4 to !978 1e,e1-. +hi- 9ay 0e a4Fu-te4 up7ar4 or 4o7n7ar4 a- re<uire4 to 0a1an2e -upp1y 7ith 4e9an4 an4 to e<uita01y 4i-tri0ute a,ai1a01e -upp1ie-. #oreo,er" the #ini-try o3 'nergy i- here0y authoriIe4 to -et -upp1y prioritie- an4 to e-ta01i-h -upp1y a11o2ationa22or4ing1y. 2. +he #ini-try o3 Lo2a1 Go,ern9ent an4 Co99unity /e,e1op9ent in 2ooperation 7ith the #ini-try o3 'nergy -ha11 3or9u1ate energy 2on-er,ation p1an- an4 i9p1e9ent the -a9e through the )ay 0riga4e-D 9oreo,er" it -ha11 a--i-t in the i9p1e9entation o3 other 2on-er,ation 9ea-ure- to 0e in-titute4 0y other go,ern9ent agen2ie-. . +he #etro #ani1a Co99i--ion" in 2oor4ination 7ith the appropriate go,ern9ent agen2ie-" -ha11 4e,e1op" i9p1e9ent an4 -uper,i-e a progra9 3or the i9p1e9entation o3 the 'Ae2uti,e &r4er on the -taggering o3 o33i2e hour- o3 0oth go,ern9ent an4 pri,ate -e2tor- to a2hie,e opti9u9 u-e o3 tran-portation 3a2i1itie-" a- 7e11 a- to i9pro,e tra33i2 31o7. 4. $11 #ini-trie-" agen2ie- an4 2orporation- o3 the go,ern9ent -ha11 4i-2ontinue the u-e o3 air2on4itioning 3a2i1itie- in o33i2e- 7ho9 a4e<uate ,enti1ation i- a,ai1a01e. $ny u-e o3 air2on4itioning 3a2i1itie- 0y go,ern9ent o33i2e- -ha11 0e on1y 7ith prior appro,a1 o3 the re-pe2ti,e 9ini-ter- an4" 7here a11o7e4 te9perature -ha11 0e ;ept at a 9ini9u9 o3 78 o .. 5. +he #ini-try o3 (u01i2 Eor;-" +ran-portation an4 Co99uni2ation- -ha11 prohi0it the u-e o3 pri,ate 9otor ,ehi21e- un4er the >=> an4 >'=> 21a--i3i2ation- o3 the L+C on 7ee;en4- an4 ho1i4ay- -tarting 000! hour-" Satur4ay 9orning" Bor the 4ay o3 the ho1i4ayC unti1 0500 hour-" #on4ay 9orning Bor the 4ay a3ter the ho1i4ayC. 'Ae9pte4 3ro9 thi- prohi0ition are 9otor ,ehi21e- o3 the 3o11o7ing 21a--i3i2ation-8

BaC B0C B2C B4C BeC

S BSer,i2eC + B+ru2;C /(L B/ip1o9ati2C CC BCon-u1ar Corp-C +C B+ouri-t Car-C

:. +he #etro #ani1a +ra33i2 #anage9ent $uthority -ha11" in 2oor4ination 7ith the appropriate 9ini-trie-" in-titute tra33i2 31o7 i9pro,e9ent 9ea-ure- to en-ure 0etter tra33i2 31o7. +he-e agen2ie- 9oreo,er" -ha11 re,ie7 the tra33i2 2itation -y-te9 in or4er to -i9p1i3y the app1i2ation o3 -an2tion- 3or tra33i2 ,io1ation-. 7. +he #ini-try o3 (u01i2 Eor;-" +ran-portation an4 Co99uni2ation -ha11 re,ie7 the regi-tration re<uire9ent- o3 ,ehi21e- 7ith a ,ie7 to 7ee4ing out ine33i2ient 9otor ,ehi21e-. 8. +he #ini-try o3 Nationa1 /e3en-e -ha11 prohi0it -port- a2ti,itie- in,o1,ing 9ain1y the u-e o3 9otor ,ehi21e-" 7ater2ra3t an4 air2ra3t" in21u4ing 0ut not 1i9ite4 to 2ar an4 9otor2y21e ra11ie-" ra2ing an4 -i9i1ar e,ent-. 9. $11 go,ern9ent #ini-trie-" agen2ie- an4 2orporation- -ha11 1i9it the u-e o3 go,ern9ent ,ehi21e- to e--entia1 a2ti,itie- an4 -ha11 re,ie7 tra,e1 progra9 an4 -2he4u1eto unne2e--ary trip-. !0. +he #etro #ani1a Co99i--ion" in 2oor4ination 7ith the appropriate agen2ie-" -ha11 -tu4y the 3ea-i0i1ity o3 4e-ignating pe4e-trian 9ai1- an4 0i2y21e 1ane-. !!. +he #ini-try o3 Nationa1 /e3en-e -ha11 inten-i3y the 4ri,e again-t hoar4ing or 01a2; 9ar;eting o3 3ue1 e-pe2ia11y o3 ;ero-ene an4 4ie-e1 an4 other petro1eu9 pro4u2t7hi2h 3ro9 ti9e to ti9e 9ay 0e -hort o3 -upp1y. !2. +he #ini-try o3 'nergy -ha11 9onitor an4 report on the i9p1e9entation o3 the 3oregoing 9ea-ure-. =o7 2an it 0e 21ai9e4 7ith a -traight 3a2e that the L&I 7a- a4opte4 pur-uant to R.$. No. 4! : 7hen no7here in the L&I i- the 1a7 9entione4 a-i4e 3ro9 the 3a2t that the #ini-try o3 (u01i2 Eor;-" +ran-portation an4 Co99uni2ation 7hi2h i- entru-te4 7ith the en3or2e9ent o3 R.$. No. 4! : i- on1y one o3 the 9any agen2ie- in,o1,e4 in 2on-er,ing energy re-our2e-L It i- o0,iou- 3or any one 7i11ing to -ee that R.$. No. 4! : ha- no re1e,an2e to the L&I. Su2h 0eing the 2a-e" the 2ir2u1ar 7hi2h i- 9ere1y an a22e--ory to the L&I 2annot a1-o 0e re1ate4 to R.$. No. 4! :. L&I No. 8:9 i- 2on-titutiona1 0ut it- app1i2ation pur-uant to #e9oran4u9 Cir2u1ar No. 9 i- not. .or thi- rea-on" I ,ote to grant the petition. I 21o-e thi- 4i--ent 7ith the 3o11o7ing o0-er,ation8 the prohi0ition again-t the u-e o3 2ertain ,ehi21e- 4uring 2ertain ti9e- ha- not 0een uni3or91y an4 2on-i-tent1y en3or2e4. Ee are a nation -urroun4e4 0y ru1e- 0ut 9any o3 7hi2h are not en3or2e4 or en3or2e4 in4i33erent1y. +hi- -ituation 0ree4- 2onte9pt in-tea4 o3 re-pe2t 3or the 1a7. $ 3e7 ru1ethat are 2on-i-tent1y en3or2e4 are 0etter than 9any 7hi2h are ,io1ate4 7ith i9punity. +eehan;ee" J." 2on2ur-.

(1ana" J." 4i--ent.