Tatad v. Secretary of The Department of Energy
Tatad v. Secretary of The Department of Energy
Tatad v. Secretary of The Department of Energy
Brillantes, Navarro, Jumamil, Arcilla, Escolin and Martinez Law Office for
petitioner in G.R. No. 124360.
Sanidad, Abaya, Cortez, Te Madrid, Viterbo & Tan Law Firm for
petitioners in G.R. No. 127867.
Alfonso M. Cruz Law Offices for Enrique Garcia.
SYNOPSIS
Republic Act No. 8180, or the Downstream Oil Industry Regulation Act
of 1996, was enacted by Congress for the purpose of deregulating the
downstream oil industry. Its validity was challenged on the following
constitutional grounds: a) that the imposition of different tariff rates on
imported crude oil and imported refined petroleum products violates the
equal protection clause; b) the imposition of different tariff rates does not
deregulate the downstream oil industry but instead controls the oil industry;
c) the inclusion of the tariff provision in Section 5(b) of RA 8180 violates the
one title-one subject requirement of the Constitution; d) that Section 15
thereof constitutes undue delegation of legislative power to the President
and the Secretary of Energy and violates the constitutional prohibition
against monopolies; and e) that Executive Order No. 392 implementing R.A.
8180 is arbitrary and unreasonable because it was enacted due to the
alleged depletion of OPSF fund — a condition not found in the law.
This Court has adopted a liberal construction of the one title-one
subject rule. A law having a single general subject indicated in the title may
contain any number of provisions, so long as they are not inconsistent with
or foreign to the general subject, and may be considered in furtherance of
such subject by providing for the method and means of carrying out the
general subject. Section 5(b) providing for tariff differential is germane to the
subject of R.A. No. 8180 which is the deregulation of the downstream oil
industry.
Section 15 can hurdle both completeness test and the sufficient
standard test. Full deregulation at the end of March 1997 is mandatory and
the Executive has no discretion to postpone it for any purported reason.
Thus, the law is complete on the question of the final date of full
deregulation.
Section 15 of R.A. No. 8180 did not mention the depletion of the OPSF
fund as basis of deregulation, thus said extraneous factor constitutes a
misapplication of R.A. No. 8180.
The 4% tariff differential and the inventory requirement are significant
barriers which discourage new players to enter the market. As the dominant
players, Petron, Shell and Caltex boast of existing refineries of various
capacities and easily comply with the inventory requirement as against
prospective new players.
The offending provisions of R.A. No. 8180 so permeate its essence that
the entire law has to be struck down. R.A. No. 8180 with its anti-competition
provisions cannot be allowed by this Court to stand even while Congress is
working to remedy its defects. TIAEac
SYLLABUS
7. Â ID.; ID.; ID.; ID.; EVEN IF THE LAW DOES NOT EXPRESSLY
PINPOINT THE STANDARD, COURTS WILL BEND BACKWARD TO LOCATE THE
SAME ELSEWHERE. — The validity of delegating legislative power is now a
quiet area in our constitutional landscape. As sagely observed, delegation of
legislative power has become an inevitability in light of the increasing
complexity of the task of government. Thus, courts bend as far back as
possible to sustain the constitutionality of laws which are assailed as unduly
delegating legislative powers. Citing Hirabayashi v. United States as
authority, Mr. Justice Isagani A. Cruz states "that even if the law does not
expressly pinpoint the standard, the courts will bend over backward to locate
the same elsewhere in order to spare the statute, if it can, from
constitutional infirmity."
8. Â ID.; ID.;. SECTION 15 OF R.A. 8180, NOT UNDUE DELEGATION
OF POWER. — Given the groove of the Court's rulings, the attempt of
petitioners to strike down Section 15 on the ground of undue delegation of
legislative power cannot prosper. Section 15 can hurdle both the
completeness test and the sufficient standard test. It will be noted that
Congress expressly provided in R.A. No. 8180 that full deregulation will start
at the end of March 1997, regardless of the occurrence of any event. Full
deregulation at the end of March 1997 is mandatory and the Executive has
no discretion to postpone it for any purported reason. Thus, the law is
complete on the question of the final date of full deregulation. The discretion
given to the President is to advance the date of full deregulation before the
end of March 1997. Section 15 lays down the standard to guide the
judgment of the President — he is to time it as far as practicable when the
prices of crude oil and petroleum products in the world market are declining
and when the exchange rate of the peso in relation to the US dollar is stable.
Petitioners contend that the words "as far as practicable," "declining" and
"stable" should have been defined in R.A. No. 8180 as they do not set
determinate or determinable standards. The stubborn submission deserves
scant consideration. The dictionary meanings of these words are well settled
and cannot confuse men of reasonable intelligence. Webster defines
"practicable" as meaning possible to practice or perform, "decline" as
meaning to take a downward direction, and "stable" as meaning firmly
established. The fear of petitioners that these words will result in the
exercise of executive discretion that will run riot is thus groundless. To be
sure, the Court has sustained the validity of similar, if not more general
standards in other cases.
9. Â ID.; ID.; DELEGATION OF POWER; EXECUTIVE IS BEREFT OF ANY
RIGHT TO ALTER THE STANDARD SET IN R.A. 8 180 BY CONSIDERING THE
DEPLETION OF OIL PRICE STABILIZATION FUND (OPSF) AS A FACTOR IN
FULLY DEREGULATING THE DOWNSTREAM OIL INDUSTRY IN FEBRUARY 1997.
— The Executive department failed to follow faithfully the standards set by
R.A. No. 8180 when it considered the extraneous factor of depletion of the
OPSF fund. The misappreciation of this extra factor cannot be justified on the
ground that the Executive department considered anyway the stability of the
prices of crude oil in the world market and the stability of the exchange rate
of the peso to the dollar. By considering another factor to hasten full
deregulation, the Executive department rewrote the standards set forth in
R.A. 8180. The Executive is bereft of any right to alter either by subtraction
or addition the standards set in R.A. No. 8180 for it has no power to make
laws. To cede to the Executive the power to make law is to invite tyranny,
indeed, to transgress the principle of separation of powers. The exercise of
delegated power is given a strict scrutiny by courts for the delegate is a
mere agent whose action cannot infringe the terms of agency. In the cases
at bar, the Executive co-mingled the factor of depletion of the OPSF fund
with the factors of decline of the price of crude oil in the world market and
the stability of the peso to the US dollar. On the basis of the text of E.O. No.
392, it is impossible to determine the weight given by the Executive
department to the depletion of the OPSF fund. It could well be the principal
consideration for the early deregulation. It could have been accorded an
equal significance. Or its importance could be nil. In light of this uncertainty,
we rule that early deregulation under E.O. No. 392 constitutes a
misapplication of R.A. No. 8180.
10. Â ID.; NATIONAL ECONOMY AND PATRIMONY; MONOPOLY AND
COMBINATION IN RESTRAINT OF TRADE, DEFINED. — A monopoly is a
privilege or peculiar advantage vested in one or more persons or companies,
consisting in the exclusive right or power to carry on a particular business or
trade, manufacture a particular article, or control the sale or the whole
supply of a particular commodity. It is a form of market structure in which
one or only a few firms dominate the total sales of a product or service. On
the other hand, a combination in restraint of trade is an agreement or
understanding between two or more persons, in the form of a contract, trust,
pool holding company, or other form of association, for the purpose of
unduly restricting competition, monopolizing trade and commerce in a
certain commodity, controlling its production, distribution and price, or
otherwise interfering with freedom of trade without statutory authority.
Combination in restraint of trade refers to the means while monopoly refers
to the end.
11. Â ID.; ID.; FREE ENTERPRISE SYSTEM DID NOT PER SE PROHIBIT
THE OPERATION OF MONOPOLIES. — While the Constitution embraced free
enterprise as an economic creed, it did not prohibit per se the operation of
monopolies which can, however, be regulated in the public interest. Thus
too, our free enterprise system is not based on a market of pure and
unadulterated competition where the State pursues a strict hands-off policy
and follows the let-the-devil devour the hindmost rule. Combinations in
restraint of trade and unfair competitions are absolutely proscribed and the
proscription is directed both against the State as well as the private sector.
This distinct free enterprise system is dictated by the need to achieve the
goals of our national economy as defined by Section 1, Article XII of the
Constitution which are: more equitable distribution of opportunities, income
and wealth; a sustained increase in the amount of goods and services
produced by the nation for the benefit of the people; and an expanding
productivity as the key to raising the quality of life for all, especially the
underprivileged. It also calls for the State to protect Filipino enterprises
against unfair competition and trade practices.
12. Â ID.; ID.; ID.; COMPETITION, UNDERLYING PRINCIPLE. — Section
19, Article XII of our Constitution is anti-trust in history and in spirit. It
espouses competition. The desirability of competition is the reason for the
prohibition against restraint of trade, the reason for the interdiction of unfair
competition, and the reason for regulation of unmitigated monopolies.
Competition is thus the underlying principle of Section 19, Article XII of our
Constitution which cannot be violated by R.A. No. 8180. DCHIAS
DECISION
PUNO, J :p
First, the facts without the fat. Prior to 1971, there was no government
agency regulating the oil industry other than those dealing with ordinary
commodities. Oil companies were free to enter and exit the market without
any government interference There were four (4) refining companies (Shell,
Caltex, Bataan Refining Company and Filoil Refining) and six (6) petroleum
marketing companies (Esso, Filoil, Caltex, Getty, Mobil and Shell), then
operating in the country. 2
In 1971, the country was driven to its knees by a crippling oil crisis. The
government, realizing that petroleum and its products are vital to national
security and that their continued supply at reasonable prices is essential to
the general welfare, enacted the Oil Industry Commission Act. 3 It created
t h e Oil Industry Commission (OIC) to regulate the business of importing,
exporting, re-exporting, shipping, transporting, processing, refining, storing,
distributing, marketing and selling crude oil, gasoline, kerosene, gas and
other refined petroleum products. The OIC was vested with the power to fix
the market prices of petroleum products, to regulate the capacities of
refineries, to license new refineries and to regulate the operations and trade
practices of the industry. 4
In addition to the creation of the OIC, the government saw the
imperious need for a more active role of Filipinos in the oil industry. Until the
early seventies, the downstream oil industry was controlled by multinational
companies. All the oil refineries and marketing companies were owned by
foreigners whose economic interests did not always coincide with the
interest of the Filipino. Crude oil was transported to the country by foreign-
controlled tankers. Crude processing was done locally by foreign-owned
refineries and petroleum products were marketed through foreign-owned
retail outlets. On November 9, 1973, President Ferdinand B. Marcos boldly
created the Philippine National Oil Corporation (PNOC) to break the control
by foreigners of our oil industry. 5 PNOC engaged in the business of refining,
marketing, shipping, transporting, and storing petroleum. It acquired
ownership of ESSO Philippines and Filoil to serve as its marketing arm. It
bought the controlling shares of Bataan Refining Corporation, the largest
refinery in the country. 6 PNOC later put up its own marketing subsidiary —
Petrophil. PNOC operated under the business name PETRON Corporation. For
the first time, there was a Filipino presence in the Philippine oil market.
In 1984, President Marcos through Section 8 of Presidential Decree No.
1956, created the Oil Price Stabilization Fund (OPSF) to cushion the effects of
frequent changes in the price of oil caused by exchange rate adjustments or
increase in the world market prices of crude oil and imported petroleum
products. The fund is used (1) to reimburse the oil companies for cost
increases in crude oil and imported petroleum products resulting from
exchange rate adjustment and/or increase in world market prices of crude
oil, and (2) to reimburse oil companies for cost underrecovery incurred as a
result of the reduction of domestic prices of petroleum products. Under the
law, the OPSF may be sourced from:
1. Â any increase in the tax collection from ad valorem tax or
customs duty imposed on petroleum products subject to tax
under P.D. No. 1956 arising from exchange rate adjustment,
By 1985, only three (3) oil companies were operating in the country —
Caltex, Shell and the government-owned PNOC.
In May, 1987, President Corazon C. Aquino signed Executive Order No.
172 creating the Energy Regulatory Board to regulate the business of
importing, exporting, re-exporting, shipping, transporting, processing,
refining, marketing and distributing energy resources "when warranted and
only when public necessity requires." The Board had the following powers
and functions:
(3) Â Section 9 (b) which states — "To ensure fair competition and
prevent cartels and monopolies in the downstream oil industry,
the following acts shall be prohibited:
which can fasttrack the writing of a new law on oil deregulation in accord
with the Constitution.
With this Decision, some circles will chide the Court for interfering with
an economic decision of Congress. Such criticism is charmless for the Court
is annulling R.A. No. 8180 not because it disagrees with deregulation as an
economic policy but because as cobbled by Congress in its present form, the
law violates the Constitution. The right call therefor should be for Congress
to write a new oil deregulation law that conforms with the Constitution and
not for this Court to shirk its duty of striking down a law that offends the
Constitution. Striking down R.A. No. 8180 may cost losses in quantifiable
terms to the oil oligopolists. But the loss in tolerating the tampering of our
Constitution is not quantifiable in pesos and centavos. More worthy of
protection than the supra-normal profits of private corporations is the
sanctity of the fundamental principles of the Constitution. Indeed when
confronted by a law violating the Constitution, the Court has no option but to
strike it down dead. Lest it is missed, the Constitution is a covenant that
grants and guarantees both the political and economic rights of the people.
The Constitution mandates this Court to be the guardian not only of the
people's political rights but their economic rights as well. The protection of
the economic rights of the poor and the powerless is of greater importance
to them for they are concerned more with the esoterics of living and less
with the esoterics of liberty. Hence, for as long as the Constitution reigns
supreme so long will this Court be vigilant in upholding the economic rights
of our people especially from the onslaught of the powerful. Our defense of
the people's economic rights may appear heartless because it cannot be
half-hearted.
IN VIEW WHEREOF, the petitions are granted. R.A. No. 8180 is declared
unconstitutional and E.O. No. 372 void.
SO ORDERED.
Regalado, Davide, Jr., Romero, Bellosillo and Vitug, JJ ., concur.
Mendoza, J ., concurs in the result.
Narvasa, C .J ., is on leave.
Separate Opinions
KAPUNAN, J ., concurring:
Viewed in this light, the tariff differential between imported crude oil
and refined petroleum products becomes an obstacle to the entry of new
players in the Philippine oil market. It defeats the purpose of the law and
should thus be struck down.
Public respondents contend that ". . . a higher tariff rate is not the
overriding factor confronting a prospective trader/importer but, rather, his
ability to generate the desired internal rate of return (IRR) and net present
value (NPV). In other words, if said trader/importer, after some calculation,
finds that he can match the price of locally refined petroleum products and
still earn the desired profit margin, despite a higher tariff rate, he will be
attracted to embark in such business. A tariff differential does not per se
make the business of importing refined petroleum product a losing
proposition." 1
The problem with this rationale, however, is that it is highly
speculative. The opposite may well hold true. The point is to make the
prospect of engaging in the oil business in the Philippines appealing, so why
create a barrier in the first place?
There is likewise no merit in the argument that the removal of the tariff
differential will revive the 10% (for crude oil) and 20% (for refined petroleum
products) tariff rates that prevailed before the enactment of R.A. No. 8180.
What petitioners are assailing is the tariff differential. Phrased differently,
why is the tariff duty imposed on imported petroleum products not the same
as that imposed on imported crude oil? Declaring the tariff differential void is
not equivalent to declaring the tariff itself void. The obvious consequence
thereof would be that imported refined petroleum products would now be
taxed at the same rate as imported crude oil which R.A. No. 8180 has
specifically set at 3%. The old rates have effectively been repealed by Sec.
24 of the same law. 2
II
The Minimum Inventory Requirement and the Prohibition
Against Predatory Pricing
SEC. 6. Â Security of Supply. — To ensure the security and
continuity of petroleum crude and products supply, the DOE shall
require the refiners and importers to maintain a minimum inventory
equivalent to ten percent (10%) of their respective annual sales
volume or forty (40) days of supply, whichever is lower.
xxx xxx xxx
SEC. 9. Â Prohibited Acts. — To ensure fair competition and
prevent cartels and monopolies in the downstream oil industry, the
following acts are hereby prohibited:
xxx xxx xxx
b) Â Predatory pricing which means selling or offering to sell
any product at a price unreasonably below the industry average cost
so as to attract customers to the detriment of competitors.
The same rationale holds true for the two other assailed provisions in
the Oil Deregulation law. The primordial purpose of the law, I reiterate, is to
create a truly free and competitive market. To achieve this goal, provisions
that show the possibility, or even the merest hint, of deterring or impeding
the ingress of new blood in the market should be eliminated outright. I am
confident that our lawmakers can formulate other measures that would
accomplish the same purpose (insure security and continuity of petroleum
crude products supply and prevent fly by night operators, in the case of the
minimum inventory requirement, for instance) but would not have on the
downside the effect of seriously hindering the entry of prospective traders in
the market.
The overriding consideration, which is the public interest and public
benefit, calls for the levelling of the playing fields for the existing oil
companies and the prospective new entrants. Only when there are many
players in the market will free competition reign and economic development
begin.
Consequently, Section 6 and Section 9(b) of R.A. No. 8180 should
similarly be struck down.
III
Conclusion
Respondent oil companies vehemently deny the "cartelization" of the
oil industry. Their parallel business behaviour and uniform pricing are the
result of competition, they say, in order to keep their share of the market.
This rationale fares well when oil prices are lowered, i.e. when one oil
company rolls back its prices, the others follow suit so as not to lose its
market. But how come when one increases its prices the others likewise
follow? Is this competition at work?
Respondent oil companies repeatedly assert that due to the
devaluation of the peso, they had to increase the prices of their oil products,
otherwise, they would lose, as they have allegedly been losing specially with
the issuance of a temporary restraining order by the Court. However, what
we have on record are only the self-serving lamentations of respondent oil
companies. Not one has presented hard data, independently verified, to
attest to these losses. Mere allegations are not sufficient but must be
accompanied by supporting evidence. What probably is nearer the truth is
that respondent oil companies will not make as much profits as they have in
the past if they are not allowed to increase the prices of their products
everytime the value of the peso slumps. But in the midst of worsening
economic difficulties and hardships suffered by the people, the very
customers who have given them tremendous profits throughout the years, is
it fair and decent for said companies not to bear a bit of the burden by
foregoing a little of their profits?
PREMISES CONSIDERED, I vote that Section 5(b), Section 6 and Section
9(b) of R.A. No. 8180 be declared unconstitutional.
PANGANIBAN, J ., concurring:
I concur with the lucid and convincing ponencia of Mr. Justice Reynato
S. Puno. I write to stress two points:
1. Â The Issue Is Whether Oil Companies May Unilaterally
Fix Prices, Not Whether This Court May
MELO, J ., dissenting:
With all due respect to my esteemed colleague, Mr. Justice Puno, who
has, as usual, prepared a well-written and comprehensive ponencia, I regret I
cannot share the view that Republic Act No. 8180 should be struck down as
violative of the Constitution.
The law in question, Republic Act No. 8180, otherwise known as the
Downstream Oil Deregulation Act of 1996, contains, inter alia, the following
provisions which have become the subject of the present controversy, to wit:
SEC. 5. Â Liberalization of Downstream Oil Industry and
Tariff Treatment. —
xxx xxx xxx
(b). Â Any law to the contrary notwithstanding and starting
with the effectivity of this act, tariff duty shall be imposed and
collected on imported crude oil at the rate of (3%) and imported
refined petroleum products at the rate of seven percent (7%), except
fuel oil and LPG, the rate for which shall be the same as that for
imported crude oils: Provided, That beginning on January 1, 2004 the
tariff rate on imported crude oil and refined petroleum products shall
be the same: Provided, further, That this provision may be amended
only by an Act of Congress. . . .
SEC. 6. Â Security of Supply. — To ensure the security and
continuity of petroleum crude and products supply, the DOE shall
require the refiners and importers to maintain a minimum inventory
equivalent to ten percent (10%) of their respective annual sales
volume or forty (40) days of supply, whichever is lower.
xxx xxx xxx
SEC. 9. Â Prohibited Acts. — To ensure fair competition and
prevent cartels and monopolies in the downstream oil industry, the
following acts are hereby prohibited:
xxx xxx xxx
b) Â Predatory pricing which means selling or offering to sell
any product at a price unreasonably below the industry average cost
so as to attract customers to the detriment of competitors.
xxx xxx xxx
SEC. 15. Â Implementation of Full Deregulation . — Pursuant
to Section 5 (e) of Republic Act No. 7638, the DOE [Department of
Energy] shall, upon approval of the President, implement the full
deregulation of the downstream oil industry not later than March
1997. As far as practicable, the DOE shall time the full deregulation
when the prices of crude oil and petroleum products in the world
market are declining and when the exchange rate of the peso in
relation to the US Dollar is stable. . . .
In G.R. No. 124360, petitioners therein pray that the aforequoted
Section 5 (b) be declared null and void. However, despite its pendency,
President Ramos, pursuant to the above-cited Section 15 of the assailed law,
issued Executive Order No. 392 on 22 January 1997 declaring the full
deregulation of the downstream oil industry effective February 8, 1997. A
few days after the implementation of said Executive Order, the second
consolidated petition was filed (G.R. No. 127867), seeking, inter alia, the
declaration of the unconstitutionality of Section 15 of the law on various
grounds.
I submit that the instant consolidated petitions should be denied. In
support of my view, I shall discuss the arguments of the parties point by
point.
1. Â The instant petitions do not raise a justiciable controversy as
the issues raised therein pertain to the wisdom and reasonableness of the
provisions of the assailed law. The contentions made by petitioners, that the
"imposition of different tariff rates on imported crude oil and imported
refined petroleum products will not foster a truly competitive market, nor will
it level the playing fields" and that said imposition "does not deregulate the
downstream oil industry, instead, it controls the oil industry, contrary to the
avowed policy of the law," are clearly policy matters which are within the
province of the political departments of the government. These submissions
require a review of issues that are in the nature of political questions, hence,
clearly beyond the ambit of judicial inquiry.
A political question refers to a question of policy or to issues which,
under the Constitution, are to be decided by the people in their sovereign
capacity, or in regard to which full discretionary authority has been
delegated to the legislative or executive branch of the government.
Generally, political questions are concerned with issues dependent upon the
wisdom, not the legality, of a particular measure (Tañada vs. Cuenco, 100
Phil. 101 [1957]).
Notwithstanding the expanded judicial power of this Court under
Section 1, Article VIII of the Constitution, an inquiry on the above-stated
policy matters would delve on matters of wisdom which are exclusively
within the legislative powers of Congress.
2. Â The petitioners do not have the necessary locus standi to file
the instant consolidated petitions. Petitioners Lagman, Arroyo, Garcia,
Tañada, and Tatad assail the constitutionality of the above-stated laws
through the instant consolidated petitions in their capacity as members of
Congress, and as taxpayers and concerned citizens. However, the existence
of a constitutional issue in a case does not per se confer or clothe a
legislator with locus standi to bring suit. In Phil. Constitution Association
(PHILCONSA) v. Enriquez (235 SCRA 506 [1994]), we held that members of
Congress may properly challenge the validity of an official act of any
department of the government only upon showing that the assailed official
act affects or impairs their rights and prerogatives as legislators. In
Kilosbayan, Inc., et al. vs. Morato, et al. (246 SCRA 540 [1995]), this Court
further clarified that "if the complaint is not grounded on the impairment of
the power of Congress, legislators do not have standing to question the
validity of any law or official action."
Republic Act No. 8180 clearly does not violate or impair prerogatives,
powers, and rights of Congress, or the individual members thereof,
considering that the assailed official act is the very act of Congress itself
authorizing the full deregulation of the downstream oil industry. cdti
Neither can petitioners sue as taxpayers or concerned citizens. A
condition sine qua non for the institution of a taxpayer's suit is an allegation
that the assailed action is an unconstitutional exercise of the spending
powers of Congress or that it constitutes an illegal disbursement of public
funds. The instant consolidated petitions do not allege that the assailed
provisions of the law amount to an illegal disbursement of public money.
Hence, petitioners cannot, even as taxpayers or concerned citizens, invoke
this Court's power of judicial review.
Further, petitioners, including Flag, FDC, and Sanlakas, can not be
deemed proper parties for lack of a particularized interest or elemental
substantial injury necessary to confer on them locus standi. The interest of
the person assailing the constitutionality of a statute must be direct and
personal. He must be able to show, not only that the law is invalid, but also
that he has sustained or is in immediate danger of sustaining some direct
injury as a result of its enforcement and not merely that he suffers thereby
in some indefinite way. It must appear that the person complaining has been
or is about to be denied some right or privilege to which he is lawfully
entitled or that he is about to be subjected to some burdens or penalties by
reason of the statute complained of. Petitioners have not established such
kind of interest.
3. Â Section 5(b) or Republic Act No. 8180 is not violative of the
"one title-one subject" rule under Section 26 (1), Article VI of the
Constitution. It is not required that a provision of law be expressed in the
title thereof as long as the provision in question is embraced within the
subject expressed in the title of the law. The "title of a bill does not have to
be a catalogue of its contents and will suffice if the matters embodied in the
text are relevant to each other and may be inferred from the title."
(Association of Small Landowners in the Phils., Inc. vs. Sec. of Agrarian
Reform, 175 SCRA 343 [1989]) An "act having a single general subject,
indicated in the title, may contain any number of provisions, no matter how
diverse they may be, so long as they are not inconsistent with or foreign to
the general subject, and may be considered in furtherance of such subject
by providing for the method and means of carrying out the general object."
(Sinco, Phil. Political Law, 11th ed., p. 225)
The questioned tariff provision in Section 5 (b) was provided as a
means to implement the deregulation of the downstream oil industry and
hence, is germane to the purpose of the assailed law. The general subject of
Republic Act No. 8180, as expressed in its title, "An Act Deregulating the
Downstream Oil Industry, and for Other Purposes", necessarily implies that
the law provides for the means for such deregulation. One such means is the
imposition of the differential tariff rates which are provided to encourage
new investors as well as existing players to put up new refineries. The
aforesaid provision is thus germane to, and in furtherance of, the object of
deregulation. The trend of jurisprudence, ever since Sumulong vs. COMELEC
(73 Phil. 288 [1941]), is to give the above-stated constitutional requirement
a liberal interpretation. Hence, there is indeed substantial compliance with
said requirement.
Petitioners claim that because the House version of the assailed law
did not impose any tariff rates but merely set the policy of "zero differential"
and that the Senate version did not set or fix any tariff, the tariff changes
being imposed by the assailed law was never subject of any deliberations in
both houses nor the Bicameral Conference Committee. I believe that this
argument is bereft of merit.
The report of the Bicameral Conference Committee, which was
precisely formed to settle differences between the two houses of Congress,
was approved by members thereof only after a full deliberation on the
conflicting provisions of the Senate version and the House version of the
assailed law. Moreover, the joint explanatory statement of said Committee
which was submitted to both houses, explicitly states that "while sub-
paragraph (b) is a modification, its thrust and style were patterned after the
House's original sub-paragraph (b)." Thus, it cannot be denied that both
houses were informed of the changes in the aforestated provision of the
assailed law. No legislator can validly state that he was not apprised of the
purposes, nature, and scope of the provisions of the law since the inclusion
of the tariff differential was clearly mentioned in the Bicameral Conference
Committee's explanatory note.
As regards the power of the Bicameral Conference Committee to
include in its report an entirely new provision that is neither found in the
House bill or Senate bill, this Court already upheld such power in Tolentino
vs. Sec. of Finance (235 SCRA 630 [1994]), where we ruled that the
conference committee can even include an amendment in the nature of a
substitute so long as such amendment is germane to the subject of the bill
before it.
Lastly, in view of the "enrolled bill theory" pronounced by this Court as
early as 1947 in the case of Mabanag vs. Lopez Vito (78 Phil. 1 [1947]), the
duly authenticated copy of the bill, signed by the proper officers of each
house, and approved by the President, is conclusive upon the courts not only
of its provisions but also of its due enactment.
4. Â Section 15 of Republic Act No. 8180 does not constitute undue
delegation of legislative power. Petitioners themselves admit that said
section provides the Secretary of Energy and the President with the bases of
(1) "practicability", (2) "the decline of crude oil prices in the world market",
and (3) "the stability of the Peso exchange rate in relation to the US Dollar",
in determining the effectivity of full deregulation. To my mind, said bases are
determinate and determinable guidelines, when examined in the light of the
tests for permissible delegation.
The assailed law satisfies the completeness test as it is complete and
leaves nothing more for the Executive Branch to do but to enforce the same.
Section 2 thereof expressly provides that "it shall be the policy of the State
to deregulate the downstream oil industry to foster a truly competitive
market which can better achieve the social policy objectives of fair prices
and adequate, continuous supply of environmentally-clean and high-quality
petroleum products." This provision manifestly declares the policy to be
achieved through the delegate, that is, the full deregulation of the
downstream oil industry toward the end of full and free competition. Section
15 further provides for all the basic terms and conditions for its execution
and thus belies the argument that the Executive Branch is given complete
liberty to determine whether or not to implement the law. Indeed, Congress
did not only make full deregulation mandatory, but likewise set a deadline
(that is, not later than March 1997), within which full deregulation should be
achieved.
Congress may validly provide that a statute shall take effect or its
operation shall be revived or suspended or shall terminate upon the
occurrence of certain events or contingencies the ascertainment of which
may be left to some official agency. In effect, contingent legislation may be
issued by the Executive Branch pursuant to a delegation of authority to
determine some fact or state of things upon which the enforcement of a law
depends (Cruz, Phil. Political Law, 1996 ed., p. 96; Cruz vs. Youngberg , 56
Phil. 234 [1931]). This is a valid delegation since what the delegate performs
is a matter of detail whereas the statute remains complete in all essential
matters. Section 15 falls under this kind of delegated authority. Notably, the
only aspect with respect to which the President can exercise "discretion" is
the determination of whether deregulation may be implemented on or
before March, 1997, the deadline set by Congress. If he so decides, however,
certain conditions must first be satisfied, to wit: (1) the prices of crude oil
and petroleum products in the world market are declining, and (2) the
exchange rate of the peso in relation to the US Dollar is stable. Significantly,
the so-called "discretion" pertains only to the ascertainment of the existence
of conditions which are necessary for the effectivity of the law and not a
discretion as to what the law shall be.
In the same vein, I submit that the President's issuance of Executive
Order No. 392 last January 22, 1997 is valid as contingent legislation. All the
Chief Executive did was to exercise his delegated authority to ascertain and
recognize certain events or contingencies which prompted him to advance
the deregulation to a date earlier than March, 1997. Anyway, the law does
not prohibit him from implementing the deregulation prior to March, 1997, as
long as the standards of the law are met. prcd
Further, the law satisfies the sufficient standards test. The words
"practicable", "declining", and "stable", as used in Section 15 of the assailed
law are sufficient standards that saliently "map out the boundaries of the
delegate's authority by defining the legislative policy and indicating the
circumstances under which it is to be pursued and effected." (Cruz, Phil.
Political Law, 1996 ed., p. 98) Considering the normal and ordinary
definitions of these standards, I believe that the factors to be considered by
the President and/or Secretary of Energy in implementing full deregulation
are, as mentioned, determinate and determinable.
It is likewise noteworthy that the above-mentioned factors laid down by
the subject law are not solely dependent on Congress. Verily, oil pricing and
the peso-dollar exchange rate are dependent on the various forces working
within the consumer market. Accordingly, it would have been unreasonable,
or even impossible, for the legislature to have provided for fixed and specific
oil prices and exchange rates. To require Congress to set forth specifics in
the law would effectively deprive the legislature of the flexibility and
practicability which subordinate legislation is ultimately designed to provide.
Besides, said specifics are precisely the details which are beyond the
competence of Congress, and thus, are properly delegated to appropriate
administrative agencies and executive officials to "fill in". It cannot be
gainsaid that the detail of the timing of full deregulation has been "filled in"
by the President, upon the recommendation of the DOE, when he issued
Executive Order No. 329.
5. Â Republic Act No. 8180 is not violative of the constitutional
prohibition against monopolies, combinations in restraint or trade, and unfair
competition. The three provisions relied upon by petitioners (Section 5 [b] on
tariff differential; Section 6 on the 40-day minimum inventory requirement;
and Section 9 [b] on the prohibited act of predatory pricing) actually
promote, rather than restrain, free trade and competition. llcd
The tariff differential provided in the assailed law does not necessarily
make the business of importing refined petroleum products a losing
proposition for new players. First, the decision of a prospective
trader/importer (subjected to the 7% tariff rate) to compete in the
downstream oil industry as a new player is based solely on whether he can,
based on his computations, generate the desired internal rate of return (IRR)
and net present value (NPV) notwithstanding the imposition of a higher tariff
rate. Second, such a difference in tax treatment does not necessarily provide
refiners of imported crude oil with a significant level of economic advantage
considering the huge amount of investments required in putting up refinery
plants which will then have to be added to said refiners' production cost. It is
not unreasonable to suppose that the additional cost imputed by higher tariff
can anyway be overcome by a new player in the business of importation due
to lower operating costs, lower capital infusion, and lower capital carrying
costs. Consequently, the resultant cost of imported finished petroleum and
that of locally refined petroleum products may turn out to be approximately
the same.
The existence of a tariff differential with regard to imported crude oil
and imported finished products is nothing new or novel. In fact, prior to the
passage of Republic Act No. 8180, there existed a 10% tariff differential
resulting from the imposition of a 20% tariff rate on imported finished
petroleum products and 10% on imported crude oil (based on Executive
Order No. 115). Significantly, Section 5(b) of the assailed law effectively
lowered the tariff rates from 20% to 7% for imported refined petroleum
products, and 10% to 3% for imported crude oil, or a reduction of the
differential from 10% to 4%. This provision is certainly favorable to all in the
downstream oil industry, whether they be existing or new players. It thus
follows that the 4% tariff differential aims to ensure the stable supply of
petroleum products by encouraging new entrants to put up oil refineries in
the Philippines and to discourage fly-by-night importers.
Further, the assailed tariff differential is likewise not violative of the
equal protection clause of the Constitution. It is germane to the declared
policy of Republic Act No. 8180 which is to achieve (1) fair prices; and (2)
adequate and continuous supply of environmentally-clean and high quality
petroleum products. Said adequate and continuous supply of petroleum
products will be achieved if new investors or players are enticed to engage
in the business of refining crude oil in the country. Existing refining
companies, are similarly encouraged to put up additional refining
companies. All of this can be made possible in view of the lower tariff duty
on imported crude oil than that levied on imported refined petroleum
products. In effect, the lower tariff rates will enable the refiners to recoup
their investments considering that they will be investing billions of pesos in
putting up their refineries in the Philippines. That incidentally the existing
refineries will be benefited by the tariff differential does not negate the fact
that the intended effect of the law is really to encourage the construction of
new refineries, whether by existing players or by new players.
As regards the 40-day inventory requirement. it must be emphasized
that the 10% minimum requirement is based on the refiners' and importers'
annual sales volume, and hence, obviously inapplicable to new entrants as
they do not have an annual sales volume yet. Contrary to petitioners'
argument, this requirement is not intended to discourage new or prospective
players in the downstream oil industry. Rather, it guarantees "security and
continuity of petroleum crude and products supply." (Section 6, Republic Act
No. 8180) This legal requirement is meant to weed out entities not
sufficiently qualified to participate in the local downstream oil industry.
Consequently, it is meant to protect the industry from fly-by-night business
operators whose sole interest would be to make quick profits and who may
prove unreliable in the effort to provide an adequate and steady supply of
petroleum products in the country. In effect, the aforestated provision
benefits not only the three respondent oil companies but all entities serious
and committed to put up storage facilities and to participate as serious
players in the local oil industry. Moreover, it benefits the entire consuming
public by its guarantee of an "adequate continuous supply of
environmentally-clean and high-quality petroleum products." It ensures that
all companies in the downstream oil industry operate according to the same
high standards, that the necessary storage and distribution facilities are in
place to support the level of business activities involved, and that operations
are conducted in a safe and environmentally sound manner for the benefit of
the consuming public.
Regarding the prohibition against predatory pricing, I believe that
petitioners' argument is quite misplaced. The provision actually protects new
players by preventing, under pain of criminal sanction, the more established
oil firms from driving away any potential or actual competitor by taking
undue advantage of their size and relative financial stability. Obviously, the
new players are the ones susceptible to closing down on account of
intolerable losses which will be brought about by fierce competition with rival
firms. The petitioners are merely working under the presumption that it is
the new players which would succumb to predatory pricing, and not the
more established oil firms. This is not a factual assertion but a rather
baseless and conjectural assumption.
As to the alleged cartel among the three respondent oil companies,
much as we suspect the same, its existence calls for a finding of fact which
this Court is not in the position to make. We cannot be called to try facts and
resolve factual issues such as this (Trade Unions of the Phils. vs. Laguesma,
236 SCRA 586 [1994]; Ledesma vs. NLRC, 246 SCRA 247 [1995]).
With respect to the amendatory bills filed by various Congressmen
aimed to modify the alleged defects of Republic Act No. 8180, I submit that
such bills are the correct remedial steps to pursue, instead of the instant
petitions to set aside the statute sought to be amended. The proper forum is
Congress, not this Court.
Finally, as to the ponencia's endnote which cites the plea of respondent
oil companies for the lifting of the restraining order against them to enable
them to adjust the prices of petroleum and petroleum products in view of the
devaluation of our currency, I am pensive as to how the matter can be
addressed to the obviously defunct Energy Regulatory Board. There has been
a number of price increases in the meantime. Too much water has passed
under the bridge. It is too difficult to turn back the hands of time.
For all the foregoing reasons, I, therefore, vote for the outright
dismissal of the instant consolidated petitions for lack of merit.
FRANCISCO, J ., dissenting:
Â
Footnotes
2. Â Paderanga & Paderanga, Jr., The Oil Industry in the Philippines, Philippine
Economic Journal, No. 65, Vol. 27, pp. 27-98 [1988].
6. Â Makasiar, G., Structural Response to the Energy Crisis: The Philippine Case.
Energy and Structural Change in the Asia Pacific Region: Papers and
Proceedings of the 13th Pacific Trade and Development Conference.
Published by the Philippine Institute for Development Studies/Asian
Development Bank and edited by Romeo M. Bautista and Seiji Naya, pp. 311-
312 (1984).
7. Â P.D. 1956 as amended by E.O. 137.
13. Â Bondoc v. Pineda , 201 SCRA 792 (1991); Osmeña v. COMELEC, 199 SCRA
750 (1991).
15. Â E.g. Garcia v. Executive Secretary, 211 SCRA 219 (1922); Osmeña v.
COMELEC, 199 SCRA (1991); Basco v. Pagcor , 197 SCRA 52 (1991); Daza v.
Singson, 180 SCRA 496 (1989), Araneta v. Dinglasan, 84 Phil. 368 (1949).
17. Â Section 26(1) Article VI of the 1987 Constitution provides that "every bill
passed by the Congress shall embrace only one subject which shall be
expressed in the title thereof."
18. Â Tobias v. Abalos, 239 SCRA 106 (1994); Philippine Judges Association v.
Prado, 227 SCRA 703 (1993); Lidasan v. COMELEC , 21 SCRA 496 (1967).
21. Â 34 Phil. 136 citing Cincinnati, W. & Z.R.R. Co. vs. Clinton Country Commrs.
(1 Ohio St. 77)
25. Â Webster, New Third International Dictionary, 1993 ed., pp. 1780, 586 and
2218.
26. Â See e.g., Balbuna v. Secretary of Education, 110 Phil. 150 used the
standard "simplicity and dignity." People v. Rosenthal , 68 Phil. 328 ("public
interest"); Calalang v. Williams, 70 Phil. 726 ("public welfare"); Rubi v.
Provincial Board of Mindoro, 39 Phil. 669 ("interest of law and order").
27. Â See for example TSN of the Session of the Senate on November 14, 1995,
p. 19, view of Senator Gloria M. Arroyo.
31. Â Art. 186. Monopolies and combinations in restraint of trade. — The penalty
of prision correccional in its minimum period or a fine ranging from 200 to
6,000 pesos, or both, shall be imposed upon:
   1.  Any person who shall enter into any contract or agreement or
shall take part in any conspiracy or combination in the form of a trust or
otherwise, in restraint of trade or commerce to prevent by artificial means
free competition in the market.
   If the offense mentioned in this article affects any food substance,
motor fuel or lubricants, or other articles of prime necessity the penalty shall
be that of prision mayor in its maximum and medium periods, it being
sufficient for the imposition thereof that the initial steps have been taken
toward carrying out the purposes of the combination.
33. Â Bernas, The Intent of the 1986 Constitution Writers (1995), p. 877;
Philippine Long Distance Telephone Co. v. National Telecommunications
Commission , 190 SCRA 717 (1990); Northern Cement Corporation v.
Intermediate Appellate Court, 158 SCRA 408 (1988); Philippine Ports
Authority v. Mendoza, 138 SCRA 496 (1985); Anglo-Fil Trading Corporation v.
Lazaro, 124 SCRA 494 (1983).
35. Â Gellhorn , Anti Trust Law and Economics in a Nutshell, 1986 ed. p. 45.
36. Â Economics and Federal Anti-Trust Law, Hornbook Series, Student ed.,
1985 ed., p. 181.
38. Â IBON Facts and Figures, Vol. 18, No. 7, p. 5, April 15, 1995.
   "Sec. 1. Â...
   Judicial power includes the duty of the courts of justice to settle actual
controversies involving rights which are legally demandable and enforceable,
and to determine whether or not there has been a grave abuse of discretion
amounting to lack of or excess of jurisdiction on the part of any branch or
instrumentality of the Government."
5. Â Id.
7. Â Id.
8. Â Id.
15. Â Blair v. Chicago, 26 S. Ct. 427, 201 U.S. 400, 50 L. Ed. 801.
25. Â Comment of the Office of the Solicitor General in G.R. No. 127867, p. 33;
Rollo , p. 191.
26. Â Supplement to the Petition in G.R. No. 127867, p. 8.
27. Â Id.
30. Â Id.
31. Â Id.
34. Â Id.
36. Â Id., at p. 116, citing Scheter v. U.S ., 295 U.S., 495; 79 L. Ed., 1570; 55
Supt. Ct. Rep. 837; 97 A.L.R. 947; People ex rel.; Rice v. Wilson Oil Co., 364
III. 406; 4 N.E. [2d], 847; 107 A.L.R., 1500.
39. Â Globe-Mackay Cable and Radio Corporation v. NLRC, 206 SCRA 701, 711.
   "DONE in the City of Manila, this 22nd day of January in the year of Our
Lord, Nineteen Hundred and Ninety-Seven.
(Signed)
FIDEL V. RAMOS"
49. Â Id., citing Thayer, James B., "The Origin and Scope of the American
Doctrine of Constitutional Lay", p. 9.