Rolando Canet vs Julieta Decena

Canet v. Decena, G.R. No. 155344. January 20, 2004

Facts:
Rolando Canet was a cockpit operator in Bula, Camarines Sur while Julieta Decena was the
mayor there. In 1998, Canet, by virtue of a council resolution, was allowed to operate a cockpit
in Bula. In 1999, the Sangguniang Bayan passed Ordinance 001 entitled An Ordinance
Regulating the Operation of Cockpits and Other Related Game-Fowl Activities in the
Municipality of Bula, Camarines Sur and Providing Penalties for any Violation to (sic) the
Provisions Thereof.

This ordinance was submitted to Decena for her approval but she denied it because the said
ordinance does not contain rules and regulations on cockfighting as well as a separability
clause. The council then decided to shelf the ordinance indefinitely.

Meanwhile, Canet applied for a mayor’s permit for the operation of his cockpit. Decena denied
Canet’s application on the ground that under the Local Government Code of 1991 (Section
447 (a) (3) (v)), the authority to give licenses for the establishment, operation and maintenance
of cockpits as well as the regulation of cockfighting and commercial breeding of gamecocks is
vested in the Sangguniang Bayan.

Therefore, she cannot issue the said permit inasmuch as there was no ordinance passed by
the Sangguniang Bayan authorizing the same. Canet then filed a Mandamus complaint
against Decena on the ground that he should be given a permit based on the 1998 resolution
allowing him to operate a cockpit and by virtue of local municipal tax ordinances which
generally provide for the issuance of a mayor’s permit for the operation of businesses.

Issue/s: Whether or not Decena can be compelled to issue a permit sans a municipal ordinance
which would empower her to do so.

Ruling: No. To compel Decena to issue the mayor’s permit would not only be a violation of the explicit
provisions of Section 447 of the Local Government Code of 1991, but would also be an undue
encroachment on Decena’s administrative prerogatives. Further, the 1998 resolution allowing
Canet to operate cockpits cannot be implemented without an ordinance allowing the operation
of a cockpit (ordinance vs resolution). The tax ordinances Canet mentioned contain general
provisions for the issuance of business permits but do not contain specific provisions
prescribing the reasonable fees to be paid in the operation of cockpits and other game fowl
activities.
 FIRST DIVISION

G.R. No. 155344 January 20, 2004

ROLANDO N. CANET, Petitioner,

DECISION

YNARES-SANTIAGO, J.:

On July 27, 1998, the Sangguniang Bayan of Bula, Camarines Sur, passed Resolution No. 049, Series of
1998,1 authorizing petitioner Rolando N. Canet to establish, operate and maintain a cockpit in Sitio, Cabaya, San
Roque, Bula, Camarines Sur.

Subsequently, the Sangguniang Bayan passed Ordinance No. 001, Series of 1999, entitled "An Ordinance
Regulating the Operation of Cockpits and Other Related Game-Fowl Activities in the Municipality of Bula,
Camarines Sur and Providing Penalties for any Violation to (sic) the Provisions Thereof." 2 Upon transmittal to
respondent Mayor Julieta A. Decena of the said municipality, it was noted that the Ordinance does not contain
rules and regulations on cockfighting and other related game fowl activities and a separability clause. The
Ordinance was returned to the Sangguniang Bayan. In Resolution No. 078, Series of 1999, Sangguniang Bayan
resolved to withdraw, set aside and shelf indefinitely Ordinance No. 001, Series of 1999. 3

Meanwhile, petitioner, relying on Resolution No. 049, Series of 1998, of the Sangguniang Bayan, filed an
application for a mayor’s permit to operate, establish and maintain a cockpit in Sitio Cabuya, San Roque, Bula,
Camarines Sur. Respondent Mayor Julieta Decena denied the application on the ground, among others, that
under the Local Government Code of 1991, the authority to give licenses for the establishment, operation and
maintenance of cockpits as well as the regulation of cockfighting and commercial breeding of gamecocks is
vested in the Sangguniang Bayan.4

Therefore, she cannot issue the said permit inasmuch as there was no ordinance passed by the Sangguniang
Bayan authorizing the same.

On July 26, 1999, petitioner filed a complaint5 against respondent Mayor with the Regional Trial Court of Pili,
Camarines Sur, Branch XXXI, which was docketed as Special Civil Action No. P-84-99, for Mandamus and
Damages with Application for Preliminary Mandatory Injunction. Respondent moved for the dismissal of the
complaint.

A Resolution was issued by the trial court on January 27, 2000, the dispositive portion of which reads:

WHEREFORE, in view of the foregoing, the motion to dismiss is hereby denied. Let a writ of preliminary
mandatory injunction issue upon the posting of an injunction bond by the plaintiff in the amount of FIFTY
THOUSAND PESOS (P50,000.00) executed to defendant to stand for all the damages which she may sustain if
it should be finally found that plaintiff is not entitled thereto, said mandatory injunction ordering and commanding
herein defendant, incumbent Mayor of the Municipality of Bula, Camarines Sur to approve and issue forthwith
the Mayor’s Permit and to accept the fees therefor for plaintiff to establish, maintain and operate a cockpit in
Cabaya, San Roque, Bula, Camarines Sur. Upon finality of this resolution, let the main case be set for further
proceedings.

SO ORDERED.6

The writ of preliminary mandatory injunction was issued on February 1, 2000. 7

Respondent filed a petition for certiorari and prohibition with the Court of Appeals, docketed as CA-G.R. SP No.
57797.8 On April 3, 2000, the Court of Appeals issued a temporary restraining order,9 directing petitioner and the
presiding judge to temporarily cease and desist from enforcing the writ of preliminary mandatory injunction
issued on February 1, 2000 in Special Civil Action No. P-84-99.
On June 3, 2002, the Court of Appeals rendered the assailed Decision, the dispositive portion of which reads:

WHEREFORE, the petition is granted and the questioned January 27, 2000 Resolution and February 1, 2000
writ of preliminary mandatory injunction issued by respondent Judge are ANNULLED AND SET ASIDE while the
writ of preliminary injunction heretofore issued by this Court on July 10, 2000 is made permanent. No costs.

SO ORDERED.10

Petitioner filed a Motion for Reconsideration which was denied for lack of merit in a Resolution dated August
2002.11

Hence, this petition for review.

The core issue in this petition is whether or not respondent, in her capacity as Municipal Mayor, can be
compelled to issue the necessary business permit to petitioner absent a municipal ordinance which would
empower her to do so.

The pertinent provision of law in contention is Section 447 (a) (3) (v) of the Local Government Code of 1991
(Republic Act No. 7160), which reads:

SEC. 447. Powers, Functions and Compensation. (a) The Sangguniang Bayan as the legislative body of the
municipality shall enact ordinances, approve resolutions and appropriate funds for the general welfare of the
municipality and its inhabitants pursuant to Section 16 of this Code and in the proper exercise of the corporate
powers of the municipality as provided for under Section 22, and shall:

xxx xxx xxx

(3) Subject to the provisions of Book II of this Code, grant franchises, enact ordinances levying taxes, fees and
charges upon such conditions and for such purposes intended to promote the general welfare of the inhabitants
of the municipality, and pursuant to this legislative authority shall:

xxx xxx xxx

(v) Any law to the contrary notwithstanding, authorize and license the establishment, operation and maintenance
of cockpits and regulate cockfighting and commercial breeding of gamecocks: Provided, That existing rights
should not be prejudiced.

Petitioner admits that there is no ordinance in Bula, Camarines Sur which authorizes the grant of a mayor’s
permit to operate and maintain a cockfighting arena. However, he invokes Resolution No. 049, S. 1998, wherein
the Sangguniang Bayan authorized him to operate a cockpit. Furthermore, he cites Municipal Tax Ordinances
Nos. 01, S. 1989, and 05, S. 1993, which generally provide for the issuance of a mayor’s permit for the operation
of businesses.

Municipal Tax Ordinances Nos. 01, S. 1989 and 05, S. 1993 contain general provisions for the issuance of
business permits but do not contain specific provisions prescribing the reasonable fees to be paid in the
operation of cockpits and other game fowl activities.

It was Ordinance No. 001, S. 1999 which provided for the collection of application filing fees, ocular inspection
fees, mayor’s permit fees, filing fees for the institution of complaints, entrance fees and special derby
assessments for the operation of cockpits.12 This Ordinance, however, was withdrawn by the Sangguniang
Bayan.

Hence, there being in effect no ordinance allowing the operation of a cockpit, Resolution No. 049, S. 1998,
authorizing petitioner to establish, operate and maintain a cockpit in Bula, Camarines Sur cannot be
implemented. Suffice it to state in this regard that to compel respondent to issue the mayor’s permit would not
only be a violation of the explicit provisions of Section 447 of the Local Government Code of 1991, but would
also be an undue encroachment on respondent’s administrative prerogatives.

Along the same vein, to read into the ordinances relied upon by petitioner objects which were neither specifically
mentioned nor enumerated would be to run afoul of the dictum that where a statute, by its terms, is expressly
limited to certain matters, it may not, by interpretation or construction, be extended to other matters.13
In other words, it is a basic precept of statutory construction that the express mention of one person, thing, act,
or consequence excludes all others, as expressed in the oft-repeated maxim expression unius est exlusio
alterius.14 Elsewise stated, expressium facit cessare tacitum – what is expressed puts an end to what is
implied.15 The rule proceeds from the premise that the legislative body would not have made specific
enumerations in a statute, if it had the intention not to restrict its meaning and confine its terms to those
expressly mentioned.

Even on the assumption that there is in fact a legislative gap caused by such an omission, neither could the
Court presume otherwise and supply the details thereof, because a legislative lacuna cannot be filled by judicial
fiat.16 Indeed, courts may not, in the guise of interpretation, enlarge the scope of a statute and include therein
situations not provided nor intended by the lawmakers. An omission at the time of the enactment, whether
careless or calculated, cannot be judicially supplied however after later wisdom may recommend the
inclusion.17 Courts are not authorized to insert into the law what they think should be in it or to supply what they
think the legislature would have supplied if its attention has been called to the omission.18
1âwphi1

Courts should not, by construction, revise even the most arbitrary and unfair action of the legislature, nor rewrite
the law to conform with what they think should be the law.19 Nor may they interpret into the law a requirement
which the law does not prescribe.20 Where a statute contains no limitations in its operation or scope, courts
should not engraft any.21 And where a provision of law expressly limits its application to certain transactions, it
cannot be extended to other transactions by interpretation.22 To do any of such things would be to do violence to
the language of the law and to invade the legislative sphere. 23

It should, furthermore, be borne in mind that cockfighting although authorized by law is still a form of gambling.
Gambling is essentially antagonistic to the aims of enhancing national productivity and self-reliance.24 As has
been previously said, a statute which authorizes a gambling activity or business should be strictly construed, and
every reasonable doubt resolved so as to limit rather than expand the powers and rights claimed by franchise
holders under its authority.25

WHEREFORE, in view of all the foregoing, the petition is hereby DENIED for lack of merit. The Decision of the
Court of Appeals dated June 3, 2002 in CA-G.R. SP No. 57797 is AFFIRMED in toto.

SO ORDERED.

Davide, Jr., C.J., (Chairman), Panganiban, Carpio, and Azcuna, JJ., concur,