UPLoc Gov Final Reviewer

Law on Local Government 1
Prof. Dan Gatmaytan, 1st semester, AY 1999-

2000
LAW ON LOCAL GOVERNMENT
Prof. Dan Gatmaytan
1st semester, AY 1999-2000
Introduction
A. Constitutional Basis -- Article X, 1987 Constitution
B. Innovations in the law on local governments introduced by the Local

Government Code of 1991
(1) Devolution of basic services (e.g. health, environment, etc.) to LGUs;

(2) Increase of financial resources available to LGUs;
(3) Devolution of responsibility for enforcement of certain regulatory powers (e.g.
reclassification of agricultural lands);
(4) Legal infrastructure for participation of NGOs and POs in the process of
governance
C. Effectivity : LGC Secs. 5(d), 536
Evardone v. COMELEC
Secretary of Health v. CA
2000
Book I: General Provisions
I. Basic Principles
A. The Code: Policy and Application
(1) Local government, decentralization, autonomy
Local autonomy: power of LGUs to decide for themselves on certain

matters
without need for clearance or approval by the
national government
Decentralization: devolution of national administration (not power)

from the
national government to the LGUs
Deconcentration:flow of autonomy from the national government

towards
regional agencies
Devolution: act by which the national government confers

power and
authority upon the various LGUs to perform specific
functions and responsibilities (LGC Sec. 17)
the transfer of power and authority from the

National
Government to LGUs to enable them to perform
specific functions and responsibilities (Art. 24, IRR
of the LGC)
Differentiate decentralization of administration from

decentralization of power.
Decentralization of Decentralization of Power

Administration
Delegation by the central Abdication of political power in

government of administrative favor of LGUs declared to be
powers to political subdivisions autonomous. In this case, the
in order to broaden the base of autonomous government is free
government power. (Limbona to chart its own destiny and
v. Mangelin) shape its future with minimum
intervention from central
authorities. (Limbona v.
Mangelin)
Local government units Autonomous regions
(2) Consultations
LGC Sec. 2(c): “It is likewise the policy of the State to require all national
agencies and offices to conduct periodic consultations with
appropriate LGUs, NGOs and POs, and other concerned
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sectors of the community before any project or program is

implemented in their respective jurisdictions.
LGC Sec. 26: Duty of National Government Agencies in the Maintenance

of Ecological Balance.
It shall be the duty of every national agency or

GOCC authorized or involved in the planning and
implementation of any project or program that may cause:
 pollution;
 climatic change;
 depletion of non-renewable resources;
 loss of crop land, rangeland, or forest cover;
and
 extinction of animal or plant species
to consult with the LGUs, NGOs, and other sectors

concerned and explain:
 the goals and objectives of the project or

program;
 its impact upon the people and the
community in terms of environmental or
ecological balance; and
 the measures that will be undertaken to
prevent or minimize the adverse effects thereof.
LGC Sec. 27: No project or program shall be implemented by

government authorities unless:
(1) the consultations mentioned above are

complied with; and
(2) prior approval of the sanggunian concerned is

obtained.
Note: Occupants in areas where such projects are to be implemented

shall not be evicted unless appropriate relocation sites have been
provided, in accordance with the Constitution.
Comment: Memorandum Circular No. 52 (1993) provides that all

offices and employees of national government agencies
and offices including GOCCs must strictly comply with the
LGC provisions on consultation. However, there are no
penalties for such breach. Question is: what are the
remedies of the LGC if the consultation requirements are
not complied with?
(3) Scope of application
The LGC shall apply to all provinces, cities, municipalities, barangays, and other
political subdivisions as may be created by law, and, to the extent herein
provided, to officials, offices, or agencies of the national government.
(LGC Sec. 4)
(4) Merger of administrative regions

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 Administrative regions are mere groupings of contiguous provinces for

administrative purposes, not for political representation. (Chiongbian v.
Orbos)
 While the power to merge administrative regions is not expressly provided

for in the Constitution, it is a power which has traditionally been lodged with
the President to facilitate the exercise of the power of general supervision of
local governments. (Abbas v. COMELEC)
(5) Rules of interpretation
Provision on power of LGU: Liberally interpreted in its favor. In case of

doubt, any question thereon shall be
resolved in favor of devolution of powers
and of the LGU. Any fair and reasonable
doubt as to the existence of the power shall
be interpreted in favor of the LGU
concerned.
Tax ordinance / revenue measure: Construed strictly against the enacting LGU,
and liberally in favor of the taxpayer.
Tax exemption, incentive, Construed strictly against the person

relief granted pursuant to LGC: claiming it.
General welfare provisions: Liberally interpreted to give more power to

LGUs in accelerating economic
development and upgrading the quality of
life for people in the community.
Where there is a controversy Customs and traditions in the place where

arising under the LGC and the controversy takes place may be
there is no applicable legal resorted to.
provision or jurisprudence:
B. General Power and Attributes
(1) Creation of LGUs
Who may create, divide, merge, abolish, or substantially alter

boundaries of LGUs?
Congress : province, city or municipality

Sangguniang Panglungsod or
Panlalawigan : barangay*
*Note: Recommendation of sangguniang bayan

is necessary. (LGC 385)
In both instances, there must be a plebiscite called for the purpose in the political
unit or units directly affected. [This is to prevent gerrymandering (i.e., the practice of
creating legislative districts to favor a particular candidate or party) and the creation or
abolition of units for purely political purposes.]
*Where a plebiscite was held with its principal subject being the
conversion of the municipality of Mandaluyong into a highly-urbanized city
and the matter of separate district representation being merely ancillary

thereto, the Supreme Court held that the exclusion of the inhabitants of
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San Juan (who belonged to the same congressional district as Mandaluyong)
from the plebiscite was proper. (Tobias v. Abalos)
Notes:
• In the creation of barangays, there is no minimum requirement for area

and income. But for all the other LGU’s, there are standards prescribed.
• The creation of LGU’s is a purely legislative act. HOWEVER, LGU’s

created by the executive shall continue to exist by virtue of LGC 442 (d). (cf.
Municipality of San Narciso v. Mendez)
• When the inquiry is focused on the legal existence of a body politic, the
action is reserved to the State in a proceeding for quo warranto or any other
direct proceeding. It must be brought in the name of the Republic of the
Philippines and commenced by the Sol-Gen or the fiscal when directed by the
President of the Philippines, and it must be timely raised. (Municipality of San
Narciso v. Mendez)
Can a statute lend color of validity to an attempted organization of a municipality

despite the fact that such statute is subsequently declared unconstitutional?
In the absence of another valid statute to give color of authority to its creation,
the organization of the municipality under such unconstitutional statute is invalid,
and the municipality cannot be considered as a de facto corporation.
In the case of Municipality of Malabang v. Benito, the Supreme Court held that
EO 386 (creating the municipality of Balabagan out of the barrios & sitios of
Malabang, Lanao del Sur) was unconstitutional. The mere fact that Balabagan
was organzied at a time when the statute had not been invalidated could not
make it a de facto corporation, as, independently of the applicable Administrative
Code provisions, there was no other valid statute to give color of authority to its
creation.
However, even though the municipality of Balabagan could not be considered a

de facto corporation, this did not mean that the acts done by it in the exercise of
its corporate power were a nullity. The Court pointed out that the existence of
EO 386 was an operative fact which could not justly be ignored. Thus, the
invalidation of the EO would not unsettle the acts done in reliance of the validity
of the creation of the municipality.
(2) Political and corporate nature of LGU’s
Differentiate the political nature and corporate nature of LGUs.
POLITICAL / CORPORATE /
GOVERNMENTAL MUNICIPAL
Sec. 15, LGC Political subdivision of Corporate entity

national government representing inhabitants of
its territory
Lidasan v. COMELEC Instrumentality of the Agency of community in

State in carrying out the administration of local affairs
functions of government
Torio v. Fontanilla Administering powers of Exercising powers for the

the state, and promotion special benefit and
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of the public welfare advantage of the community
Liability of LGU to 3rd LGU cannot be held liable Can be held liable ex
persons contractu or ex delicto
Exceptions:
NOTE: This must be (1) If statute provides
related to Art. 24 of the otherwise;
Local Government (2) NCC 2189
Code.
Liability of LGU’s No liability provided that Respondeat superior

agents / officers duties were performed
honestly and in good faith,
and they did not act
wantonly or maliciously
(Torio v. Fontanilla)
Examples of governmental activities:
 Regulations against fire, disease;

 Preservation of public peace;
 Maintenance of municipal prisons;
 Establishment of schools, post-offices, etc.
(Torio v. Fontanilla, citing Mendoza v. de Leon)
Examples of proprietary / corporate activities:
 Municipal waterworks;
 Slaughterhouses;
 Markets;
 Stables;
 Bathing establishments;
 Wharves;
 Ferries;
 Fisheries;
 Maintenance of parks, golf courses, cemeteries, airports
(Torio v. Fontanilla, citing Mendoza v. de Leon)
 Holding of a town fiesta (Torio v. Fontanilla)
Notes:
 Public markets are subject to the LGU’s supervision and control. Their closure or
conversion into private markets must follow the procedures laid down by law. Thus,
where the power to establish and maintain public markets is granted to the Municipal
Board, the local chief executive cannot unilaterally withdraw it from use as a public
market without the approval of the Board. (Cruz v. CA)
(3) General Welfare
What powers do LGUs have under the general welfare clause of the
LGC?
(1) Powers expressly granted to the LGU;

(2) Those powers necessarily implied therefrom;
(3) Powers necessary, appropriate, or incidental for its efficient and effective
governance; and
(4) Those powers which are essential to the promotion of the general welfare.
(LGC Sec. 16)
What duties do LGUs have under the general welfare clause?

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Within their respective territorial jurisdictions, LGUs shall ensure and support,
among other things:
 Preservation and enrichment of culture;

 Promotion of health and safety;
 Enhancement of the right of the people to a balanced ecology;
 Development of appropriate and self-reliant scientific and
technological capabilities;
 Improvement of public morals;
 Enhancement of economic prosperity and social justice;
 Promotion of full employment among their residents;
 Maintenance of peace and order; and
 Preservation of the comfort and convenience of their inhabitants.
What are the 2 branches of the general welfare clause?
(1) Those ordinances / resolutions necessary to carry into effect and discharge
powers and duties conferred upon the municipal council by law; and
(2) Those ordinances / resolutions necessary and proper to provide for the
health and safety, promote the prosperity, improve the morals, peace, good
order, comfort, and convenience of the municipality and the inhabitants
thereof, and for the protection of property therein.
(U.S. v. Salaveria)
Ordinances / acts deemed ultra vires and void:
 An ordinance imposing a cadaver transfer fee which is payable whenever

a cadaver, previously interred in a burial place, is removed therefrom for
transfer to a private cemetery in Caloocan City, and which is distinct from the
burial fee (Viray v. City of Caloocan)
 An ordinance requiring entities selling admission tickets to movies, public

exhibitions, games, contests, or other performances to charge only half-price
for children between 7-12 years old (Balacuit v. CFI of Agusan del Norte)
 Leasing of public plaza to vendors (Villanueva v. Castaneda)
Ordinances / acts deemed valid under the general welfare clause:
 A municipal ordinance prescribing the zonification and classification of

merchandise and foodstuff sold in the public market (Ebona v. Municipality of
Daet)
 A proclamation reserving certain parcels of the public domain situated in

Malabon for street widening and parking space purposes (Republic v.
Gonzales)
 An ordinance prohibiting the playing of games such as panguingue,

poker, paris-paris (and other games of chance) on days not Sundays or legal
holidays (U.S. v. Salaveria)
 Condemnation and demolition of buildings found to be in a dangerous or

ruinous condition within the authority provided for by municipal ordinances
(Chua Huat v. CA)
 A resolution confirming / ratifying a Burial Assistance Program extending

financial assistance to bereaved families (Binay v. Domingo)
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 A zoning ordinance which declares an area as a commercial zone and

regulates the location of funeral homes therein (Patalinghug v. CA)
Notes:
 To constitute public use, the public in general should have equal or common
rights to use the land or facility involved on the same terms, however limited in
number the people who can actually themselves of it at a given time. (Republic v.
Gonzales, citing various cases)
 The number of users is not the yardstick in determining whether property is

properly reserved for public use or public benefit. (Republic v. Gonzales)
Abatement of nuisances
Comment: Secs. 447 and 458 of the LGC grant the Sangguniang Bayan and
Sangguniang Panlungsod, respectively, the power to “declare,
prevent or abate any nuisance.” The provisions of the Code do
not make a distinction between nuisance per se and nuisance
per accidens, thus creating a presumption that LGUs can abate
all kinds of nuisances without need of a judicial order.
However, the jurisprudence holds that LGUs can abate

extrajudicially only nuisances per se. How should this
discrepancy be reconciled?
Study carefully the following:
 The Civil Code provisions regarding nuisances;

 Estate of Gregoria Francisco v. CA
 Technology Developers, Inc. v. CA (parts 1 & 2)
 Laguna Lake Development Authority v. CA
(4) Basic Services and Facilities
What are the basic services and facilities which LGUs must provide to
their constituents?
BARANGAY MUNICIPALITY PROVINCE CITY
Agricultural support Agriculture and Agricultural extension See municipality and

services fishery extension and and on-site research province
on-site research services and facilities;
services and facilities organization of farmers
and fishermen’s
cooperatives
Health services Same; health centers Health services, See municipality and
and clinics including hospitals and province
tertiary health services
Social welfare Same Same, including rebel See municipality and

services returnees and province
evacuees, relief
operations, population
dev’t services
General hygiene and Same See municipality and

sanitation province
Solid waste Solid waste disposal See municipality and

collection system or province
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environmental
management system
Katarungang NA See municipality and

pambarangay province
Maintenance of Roads, bridges, Similar to those for See municipality and

roads, bridges and communal irrigation, municipality province
water supply artesian wells,
systems drainage, flood
control
Infrastructure Municipal buildings, See municipality and

facilities (e.g. plaza cultural centers, province
multi-purpose hall) public parks
Information and Information services, Upgrading and See municipality and

reading center tax and marketing modernization of tax province
information systems, information and
and public library collection services
Satellite or public Public markets, See municipality and

market slaughterhouses province
Implementation of Enforcement of See municipality and

community-based forestry laws, limited to province
forestry projects community-based
forestry projects,
pollution control law,
small-scale mining law,
mini-hydroelectric
projects for local
purposes
School buildings See municipality and

province
Public cemetery See municipality and

province
Tourism facilities Tourism development See municipality and

and promotion province
programs
Police, fire stations, Same See municipality and

jail province
Industrial research and See municipality and

development services province
Low-cost housing and See municipality and

other mass dwellings province
Investment support See municipality and

services province
Inter-municipal Adequate
telecommunication communication and
services transportation
facilities
How shall these basic services and facilities be funded?
From the share of LGUs in the proceeds of national taxes and other local
revenues and funding support from the national government, its instrumentalities
and GOCCs which are tasked by law to establish and maintain such services or
facilities. (LGC Sec. 17 (g))
(5) Power to Generate Revenue

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What are the powers granted to LGUs under Sec. 18 of the LGC?
Under this provision, LGUs have the power and authority to:
(1) establish an organization that shall be responsible for the efficient and
effective implementation of their development plans, program objectives and
priorities;
(2) create their own sources of revenue and to levy taxes, fees, and charges
which shall accrue exclusively for their use and disposition and which shall be
retained by them;
(3) have a just share in national taxes which shall be automatically and
directly released to them without need of any further action;
(4) have an equitable share in the proceeds from the utilization and
development of the national wealth and resources within their respective
territorial jurisdictions including sharing the same with the inhabitants by way of
direct benefits;
(5) acquire, develop, lease, encumber, alienate, or otherwise dispose of real

or personal property held by them in their proprietary capacity and to apply their
resources and assets for productive, developmental, or welfare purposes, in the
exercise or furtherance of their governmental or proprietary powers and
functions and thereby ensure their development into self-reliant communities
and active participants in the attainment of national goals.
(6) Eminent Domain
What are the requisites for the exercise of eminent domain by

LGUs?
(1) Exercised by the chief executive;

(2) Pursuant to an ordinance;
(3) For public use, or purpose, or welfare for the benefit of the poor and the
landless;
(4) Upon payment of just compensation (based on the fair market value at the
time of the taking, not at the time of payment);
(5) Valid and definite offer had previously been made to the owner, and such
offer was not accepted. (LGC Sec. 19)
(7) Reclassification of lands
What are the requisites for valid reclassification of lands by LGUs?
(1) The LGU must be either a city or municipality;
(2) Public hearings are conducted for the purpose;
(3) The sanggunian passes an ordinance authorizing the reclassification of

agricultural lands and provides for the manner of their utilization and
disposition;
(4) The purpose for reclassification is either:
(a) The land has ceased to be economically feasible and sound for
agricultural purposes as determined by the DA; or
(b) The land shall have substantially greater economic value for
residential, commercial, or industrial purposes, as determined by the
sanggunian concerned.
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(5) The reclassification does not exceed the following limits at the time of the
passage of the ordinance:
Highly urbanized and independent 15% of total agricultural

component cities: land area
Component cities, 1st to 3rd class 10%

municipalities:
4th to 6th class municipalities: 5%
Exception: When the LGU is authorized by the President when

public interest so requires and upon
recommendation of the NEDA.
(6) Compliance with the requirements of national government agencies:
 Comprehensive Land Use Plan approved by the HLURB (in the

case of provinces, highly urbanized cities, independent component
cities and the cities and municipalities of M.M.) or the Sangguniang
Panlalawigan (in the case of component cities and municipalities);
 Certification from the local HLURB specifying the total area of

zoned agricultural lands in the LGU concerned based on the approved
Comprehensive Land Use Plan or Zoning Ordinance prior to the
application for conversion;
 Certification from the National Irrigation Administration that the

area to be reclassified is not covered under Pres. A.O. 20, series of
1992;
 Certification from the DAR indicating that such lands are not
distributed or covered by a Notice of Valuation under CARP; and
 Certification from DENR that the area applied for reclassification

has been classified as alienable and disposable, and is not needed for
forestry purposes in case the area applied for falls within public lands.
(AO 363, Sec. 1B (5))
Differentiate reclassification, land use conversion, and zoning.
Reclassification Land Use Zoning

Conversion
Definition Act of specifying how Act or process of Delineation of a city /

agricultural land shall be changing the current municipality into
utilized for non- use of a piece of functional zones
agricultural uses such as agricultural land into where only specified
residential, industrial, some other use land uses are allowed.
commercial as embo- (Sec. 2, AO 363) It directs and regulates
died in the land use plan the use of all lands in
subject to the require- the community in
ments and procedure for accordance with an
conversion. It also approved or adopted
includes the reversion of land use plan for the
non-agricultural lands to city / municipality.
agricultural use. (Joint
HLURB, DAR, DA, DILG
Memo-Circular, s. 1995)
Socialized housing: refers to housing programs and projects covering houses and lots
2000
or homelots only undertaken by the government or the private
sector for the underprivileged and homeless citizens which shall
include sites and services developments, long-term financing,
liberalized terms on interest payments, and such other benefits in
accordance with RA 7279.
What are the priorities in the acquisition of lands for socialized

housing?
(1) Those owned by the Government or any of its subdivisions,

instrumentalities, or agencies, including GOCCs and their
subsidiaries;
(2) Alienable lands of the public domain;
(3) Unregistered or abandoned and idle lands;
(4) Those within the declared Areas for Priority Development, Zonal
improvement sites, and Slum Improvement and Resettlement
Program sites which have not yet been acquired;
(5) BLISS sites which have not yet been acquired; and
(6) Privately-owned lands. (RA 7279, Sec. 9)
Thus, in the case of Filstream International v. CA where private lands

were subjected to expropriation proceedings for socialized housing
without prior resort to the acquisition of other lands, the Supreme Court
held that the property owner’s right to due process was violated and set
aside the expropriation order accordingly.
(8) Closure and opening of roads
What are the requirements for a valid permanent closure?
What are the requirements for valid temporary closure?
(9) Corporate powers
What are the requisites for entering into a contact by the LGU?
(Sec. 22c)
Differentiate public from private / patrimonial property.

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(10) Authority to Negotiate and Secure Grants
(11) Liability for Damages
Differentiate between suability and liability.
Can the doctrine of estoppel be applied against municipal

corporations?
Governmental v. proprietary functions.
C. Intergovernmental relations between national government and LGU’s
(1) Executive Supervision
What is the power of the President over LGU’s?
General supervision, to ensure that the acts of LGUs are within the scope of their
prescribed powers and functions. (Art. X, Sec. 4, 1987 Constitution)
 Direct supervisory authority over provinces, highly urbanized cities,

and independent component cities
 Supervision over component cities and municipalities through
provinces
 Supervision over barangays through city and municipality (LGC Sec.
25)
Also, the President may direct the appropriate national agency to provide
financial, technical, or other forms of assistance to an LGU upon its (the LGU’s)
request. (LGC Sec. 25c)
Differentiate between control and supervision.
Control Supervision
Power of an officer to alter or modify or Overseeing or the power or

nullify or set aside what a subordinate authority of an officer to see that
officer had done in the performance of subordinate officers perform their
his duties and to substitute the judgment duties. If the latter fail or neglect
of the former for that of the latter to fulfill them, the former may take
(Mondano v. Silvosa) such action or step as prescribed
by law to make them perform these
duties. (Mondano v. Silvosa)
What is the nature of the power of the Secretary of Justice to review the
constitutionality or legality of tax ordinances and revenue measures?
The power granted by Sec. 187 of the Local Government Code to the Secretary
of Justice to review the constitutionality or legality of tax ordinances and revenue
measures is a mere act of supervision and not of control. The Secretary of
Justice is not permitted to submitted his own judgment for the judgment of the
local government that enacted the measure. (Drilon v. Lim)
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What is the doctrine of qualified political agency?
All executive and administrative organizations are adjuncts of the Executive

Department, the heads of the various executive departments are assistants and
agents of the Chief Executive, and, except in cases where the Chief Executive is
required by the Constitution or law to act in person on the exigencies of the
situation demand that he act personally, the multifarious executive and
administrative functions of the Chief Executive are performed by and through the
executive departments, and the acts of the Secretaries of such departments,
performed and promulgated in the regular course of business, are, unless,
disapproved or reprobated by the Chief Executive presumptively the acts of the
Chief Executive. (De Leon v. Carpio, as quoted in Carpio v. Executive Secretary)
(2) Relations with Philippine National Police
What is the extent of operational supervision and control of local

chief executives over the Philippine National Police?
PROVINCIAL GOVERNOR:
 Shall choose the provincial director from a list of 3 eligibles

recommended by the PNP regional director;
 Chairman of the provincial peace and order council; shall oversee

the implementation of the provincial public safety plan (RA 6975, Sec.
51 (a))
 Deputized agent of the National Police Commission in his

jurisdiction. As such, he can inspect police forces and units, conduct
audit, and exercise other functions as authorized by the Commission.
(RA 8551, Sec. 64)
*NOTE: Unless reversed by the President, this deputation may be

suspended or withdrawn by the National Police Commission, upon
consultation with the provincial governor and congressman concerned,
for any of the following grounds:
(a) Frequent unauthorized absences;

(b) Abuse of authority;
(c) Providing material support to criminal elements; or
(d) Engaging in acts inimical to national security or which
negate the effectiveness of the peace and order campaign.
Upon good cause shown, the President may, directly or through the
Commission, motu proprio restore such deputation withdrawn. (RA 8551,
Sec. 65)
CITY AND MUNICIPAL MAYORS:
 Shall exercise operational supervision and control* over PNP units

in their respective jurisdictions, except during the 30-day period
immediately preceding and following any national, local or barangay
elections. (RA 6975 Sec. 51 (b), as amended by RA 8551)
* the power to direct, superintend, and oversee the day-to-day functions

of police investigation of crime, crime prevention activities, and traffic
control in accordance with the rules and regulations promulgated by the
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National Police Commission. It likewise includes the power to employ
and deploy units or elements of the PNP.
 Chairman of local peace and order council; shall develop and

establish an integrated area / community public safety plant
embracing priorities of action and program thrusts for implementation
by the local PNP stations;
 Have the duty to sponsor periodic seminars for members of the

PNP assigned to detailed in his LGU in order to update them
regarding local ordinances and legislations;
 Have the power to impose, after due notice and summary

hearings, disciplinary penalties for minor offenses* committed by
members of the PNP assigned to their respective jurisdictions
* Offenses punishable by withholding of privileges,

restriction to specified limits, suspension or forfeiture
of salary, or any combination thereof for a period of
16-30 days. (RA 6975, Sec. 41 (a) (2))
 Have the authority to choose the Chief of Police from a list of 5

eligibles recommended by the provincial police director;
 May recommend the recall or reassignment of the Chief of Police

when, in the perception of the local peace and order council, such
Chief of Police has been ineffective in combating crime or maintaining
peace and order in the city or municipality
 Have the authority to recommend to the provincial director the

transfer, reassignment, or detail of PNP members outside of their
respective city or town residences;
 Have the authority to recommend the appointment of new

members of the PNP to be assigned to their respective cities from a
list of eligibles previously screened by the peace and order council or
municipalities
 Have control and supervision over anti-gambling operations

(RA 6975, Sec. 51 (b) (4), as amended by RA 8551)
 Deputized agents of the National Police

Commission(NAPOLCOM) in his jurisdiction. As such, they can
inspect police forces and units, conduct audit, and exercise other
functions as authorized by the Commission. (RA 8551, Sec. 64)
*Unless reversed by the President, this deputation may be suspended or

withdrawn by the NAPOLCOM, upon consultation with the provincial
governor and congressman concerned, for any of the following grounds:
(a) Frequent unauthorized absences;

(b) Abuse of authority;
(c) Providing material support to criminal elements; or
(d) Engaging in acts inimical to national security or which
negate the effectiveness of the peace and order campaign.
Upon good cause shown, the President may, directly or through the
Commission, motu proprio restore such deputation withdrawn. (RA 8551,
Sec. 65)
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Is the deputization of municipal and city mayors as agents of the
NAPOLCOM a usurpation of the power of control of the NAPOLCOM over
the PNP?
No. There is no usurpation of the power of control of the NAPOLCOM under

Section 51 of RA 6975 because under this very same provision, it is clear that
the local executives are only acting as representatives of the NAPOLCOM. As
such deputies, they are answerable to the NAPOLCOM for their actions in the
exercise of their functions under that section. Thus, unless countermanded by
the NAPOLCOM, their acts are valid and binding as acts of the NAPOLCOM.
The same holding is true with respect to the contention on the operational
supervision and control exercised by the local officials. These officials would
simply be acting as representatives. (Carpio v. Executive Secretary)
(3) Inter-Local Government Relations
What is the nature of the relationship of the province and the cities
and municipalities within its territorial jurisdiction?
Component cities / municipalities: Province, through the governor, shall

ensure that the city / municipality acts within
the scope of its prescribed powers and
functions.
Highly urbanized cities

Independent component cities: Independent of the province.
Review of Executive Orders (LGC Sec. 30)
Governor: EOs promulgated by component city or municipal

mayor within his jurisdiction
City / Municipal Mayor: EOs promulgated by the punong barangay within

his jurisdiction
Notes:
• Copies of the EOs must be forwarded to the proper reviewing

authority within 3 days from their issuance.
• In all instances of review, the local chief executive concerned shall

ensure that such EOs are within the powers granted by law and in
conformity with provincial, city or municipal ordinances.
• If the reviewing authority fails to act on said EOs within 30 days

after their submission, they shall be deemed consistent with law and
therefore valid.
(4) Relations with Peoples’ and Nongovernmental Organizations
(5) Local prequalification, bids and awards committee

2000
II. Elective Officials
A. Qualifications
What are the qualifications for elective local officials?
(1) Philippine citizen (Note: not necessarily natural-born);

(2) Registered voter in the barangay, municipality, city, or province, or district (in case of
member of sangguniang panlalawigan, panglungsod or bayan);
(3) Resident of area for at least 1 year immediately preceding the day of the election;
(4) Able to read and write Filipino or any other local language or dialect
(5) Compliance with age requirement:
(a) Governor |
Vice-governor |
Member of sangguniang panlalawigan |
Mayor | At least 23 years old on
Vice-mayor | election day
Member of sangguniang panglungsod |
of highly urbanized cities |
(b) Mayor / Vice-mayor of independent component | At least 21 years old on

cities, component cities or municipalities | election day
(c) Member of sangguniang panglungsod or bayan | At least 18 years old on

Punong barangay, member of sangguniang | election day
barangay
(d) Candidates for sangguniang kabataan At least 15 years old but

not more than 21 years old on
election day
B. Disqualifications
What are the grounds for disqualification under the Local Government
Code?
(1) Those sentenced by final judgment for an offense involving moral turpitude or for
an offense punishable by one (1) year or more of imprisonment, within two (2)
years after serving sentence (LGC Sec. 40 (a));
 As a general rule, crimes mala in se involve moral turpitude, while crimes

mala prohibita do not. In the final analysis, however, whether or not a crime
involves moral turpitude is ultimately a question of fact and frequently depends
on all the circumstances surrounding the violation of a statute. (Dela Torre v.
COMELEC)
 Fencing is a crime involving moral turpitude: actual knowledge by the

"fence" of the fact that property received is stolen displays the same degree of
malicious deprivation of one's rightful property as that which animated the
robbery or theft which, by their very nature, are crimes of moral turpitude. (Dela
Torre v. COMELEC)
 Probation only suspends the execution of the sentence. It does not

suspend the applicability of the disqualification. (Dela Torre v. COMELEC)
2000
(2) Those removed from office as a result of an administrative case (LGC Sec. 40(b));
 To be valid, a decision in administrative cases involving local elective

officials rendered by the Sanggunian must :
(a) be in writing;
(b) state the facts and the law on which it was based; and
(c) be signed by the members taking part in the decision. (Malinao v. Reyes)
 Where an administrative case filed against an elective local official is not

decided before the expiration of his term of office, his subsequent reelection
operates as a condonation of his previous misconduct and he cannot be
removed. (Aguinaldo v. Santos)
 Where a deputy sheriff was dismissed from the service upon conviction
for serious misconduct and was barred from reinstatement to any position in
national or local government, it was held that such bar only applied to appointive
positions. He was not disqualified from running for an elective position. (Grego
v. COMELEC)
Comment: See the case of Reyes v. COMELEC.
(3) Those convicted by final judgment for violating the oath of allegiance to the
Republic (LGC Sec. 40 (c));
(4) Those with dual citizenship (LGC Sec. 40 (d));
 Dual citizenship as contemplated under this provision and the

Constitution refers to dual allegiance. Consequently, persons with mere dual
citizenship do not fall under the disqualification. (Mercado v. Manzano)
 The filing of a certificate of candidacy suffices as a renunciation of

American (foreign) citizenship and effectively removes any disqualification a
candidate may have as a dual citizen. (Mercado v. Manzano)
(5) Fugitives from justice in criminal or nonpolitical cases here or abroad (LGC Sec.
40 (e));
 Art. 73 of the IRR of the LGC is an inordinate and undue circumscription

of the law to the extent that it confines the term "fugitive from justice" to refer only
to a person (the fugitive) "who has been convicted by final judgment." (Marquez
v. COMELEC)
 The term "fugitive from justice" includes not only those who flee after
conviction to avoid punishment, but likewise those who, after being charged, flee
to avoid prosecution. (Rodriguez v. COMELEC)
 The intent to evade is the compelling factor that animates one's flight from
a particular jurisdiction. And obviously, there can only be an intent to evade
prosecution or punishment where there is knowledge by the fleeing subject of an
already instituted indictment, or of a promulgated judgment of conviction. Intent
to evade on the part of a candidate must therefore be established by proof that
there has already been a conviction, or at least a charge had been filed, at the
time of flight. (Rodriguez v. COMELEC)
2000
(6) Permanent residents in a foreign country or those who have acquired the right to
reside abroad and continue to avail of the same right after the effectivity of the
Local Government Code (LGC Sec. 40 (f));
 Sec. 68 of the Omnibus Election Code (BP 881) provides that "any
person who is a permanent resident of or an immigrant to a foreign country shall
not be qualified to run for an elective office under such Code unless said person
has waived his status as permanent resident or immigrant of a foreign country in
accordance with the residence requirement provided for in the election laws."
(7) The insane or feeble-minded (LGC Sec. 40 (g));
(8) Other grounds, e.g.
(a) Vote-buying
 Vote-buying is a ground for disqualification under Sec. 68 of the Omnibus

Election Code (BP 881).
 Vote-buying has its criminal and electoral aspects. Its criminal aspect to
determine the guilt or innocence of the accused cannot be the subject of
summary hearing. However, its electoral aspect to ascertain whether the
offender should be disqualified from office can be determined in an
administrative proceeding that is summary in character. (Nolasco v.
COMELEC)
(b) Voluntary renunciation (Dimaporo v. Mitra)
(c) Service for 3 consecutive terms in the same position

(LGC Sec. 43 (b))
 The term limit for elective local officials must be taken to refer to the right
to be elected as well as the right to serve in the same elective position.
Consequently, it is not enough that an individual has served 3 consecutive
terms in an elective local office. He must also have been elected to the same
position for the same number of times before the disqualification can apply.
(Borja v. COMELEC)
What are the effects of the filing of a disqualification case?
 Any candidate who has been declared by final judgment to be disqualified shall
not be voted for, and the votes cast for him shall not be counted.
 If for any reason a candidate is not declared by final judgment before an election
to be disqualified and he is voted for and receives the winning number of votes in such
election, the Court or COMELEC shall continue with the trial and hearing of the action,
inquiry or protest and, upon motion of the complainant or any intervenor, may during the
pendency thereof order the suspension of the proclamation of such candidate whenever
the evidence of his guilt is strong.
(RA 6646, Sec. 6)
C. Election Cases involving local elective officials: procedures
Appeal of decisions of COMELEC
The fact that decisions, final orders or rulings of the COMELEC in contests involving elective
municipal and barangay offices are final, executory and not appealable, does not preclude a
recourse to the Supreme Court by way of a special civil action of certiorari. (Galido v.
COMELEC)
2000
Execution pending appeal in election cases
What are the recognized "good reasons" for execution pending appeal in
election cases?
(1) public interest involved or the will of the electorate;

(2) shortness of the remaining portion of the term of the contested office; and
(3) length of time that the election contest has been pending.
(Ramas v. COMELEC)
A combination of two or more of these reasons will suffice to grant execution pending
appeal.
Note: The filing of a bond does not constitute a good reason. However, the trial
court may require the filing of a bond as a condition for the issuance of a
corresponding writ of execution to answer for the payment of damages which the
aggrieved party may suffer by reason of the execution pending appeal.
3-term limit for elective officials
The term limit for elective local officials must be taken to refer to the right to be elected as well
as the right to serve in the same elective position. Consequently, it is not enough that an
individual has served 3 consecutive terms in an elective local office. He must also have been
elected to the same position for the same number of times before the disqualification can apply.
(Borja v. COMELEC)
D. Vacancies and successions
When does a permanent vacancy arise?
Sequence for automatic succession
Temporary vacancies
Leaves of absence
2000
E. Local legislation
Who exercises local legislative power?
LGU Local legislative Presiding Officer*

power
Province Sangguniang Panlalawigan Vice-Governor

City Sangguniang Panlungsod City Vice-Mayor
Municipality Sangguniang Bayan Municipal Vice-Mayor
Barangay Sangguniang Barangay Punong Barangay
* The presiding officer shall vote only to break a tie. (LGC Sec. 49 (a))
Veto power by local chief executive
Who may veto: Governor, city mayor or municipal mayor

(LGC Sec. 55 (a));
What may be vetoed: Any ordinance of the sangguniang panlalawigan,

panlungsod, or bayan in its entirety;
Any particular item or items* of an:
• Appropriations ordinance;
• Ordinance or resolution adopting a local
development plan and public investment
program;
• Ordinance directing the payment or money
or creating liability.
*In this case, the veto shall not affect the item /s not
objected to.
Grounds: The ordinance is ultra vires or prejudicial to the public

welfare.
What are the tests of a valid ordinance?
(1) It must not contravene the constitution or any statute;

(2) It must not be unfair or oppressive;
(3) It must not be partial or discriminatory;
(4) It must not prohibit but may regulate trade;
(5) It must be general and consistent with public policy;
(6) It must not be unreasonable.
(Magtajas v. Pryce Properties; Tatel v. Municipality of Virac)
Differentiate an ordinance from a resolution.
Ordinance Resolution
Nature Law Merely a declaration of the

sentiment or opinion of a
lawmaking body on a
specific matter
Permanence General and permanent Temporary in nature
Need for 3rd reading? Requires a 3rd reading Does not require a 3rd
2000
reading, unless decided
otherwise by a majority of
all the Sanggunian
members
(cf. Municipality of Paranaque v. V.M. Realty Corp.)
F. Judicial intervention
G. Disciplinary actions
Differentiate preventive suspension of elective local government

officials under the Local Government Code and under the Ombudsman
Act (RA 6770):
Local Government Code Ombudsman Act

(RA 7160) (RA 6770)
Grounds When evidence of guilt is strong, When evidence of guilt is strong,

and given the gravity of the offense, and (a) the charge against such
there is great probability that the officer or employee involves
continuance in office of the dishonesty, oppression or grave
respondent could influence the misconduct or neglect in the
witnesses or pose a threat to the performance of duty; (b) the
safety and integrity of the records charges would warrant removal
and other evidence. (Sec. 63) from the service; or (c) the
respondent's continued stay in
office may prejudice the case filed
against him. (Sec. 24)
Who may President, governor, or mayor, as Ombudsman or his Deputy

impose the case may be
Length of Maximum of 60 days for any single Until case is terminated by Office
suspension preventive suspension of Ombudsman, but not more than
6 months
If several administrative cases are
filed, suspension shall not be more Exception: When the delay in
than 90 days within a single year on the disposition of the case by the
the same ground or grounds Ombudsman is due to the fault,
existing and known at the time of negligence or petition of the
the first suspension. respondent, in which case the
period of such delay shall not be
counted in computing the period of
suspension.
Differentiate between preventive suspension and suspension as a

penalty.
Notes on suspension as a penalty:
 Cannot exceed the unexpired term of the respondent or a period of 6 months for
every administrative offense;
 Such penalty shall not be a bar to the candidacy of the respondent so suspended
as long as he meets the qualifications required for the office
2000
Any administrative disciplinary proceeding against respondent is abated if in the meantime he is
reelected, because his reelection results in a condonation of whatever misconduct he might
have committed during his previous terms. (Malinao v. Reyes)
What are the grounds for disciplinary actions?
What is the procedure for administrative complaints?
What are the requisites for the validity of decisions in administrative

complaints rendered by the pertinent Sanggunian?
(1) The decision must be in writing;

(2) It must state clearly and distinctly the facts and the reasons for such
decision;
(3) It must be signed by the members taking part in the decision.
(Malinao v. Reyes)
Can the President remove an erring local government official?

No. Sec. 60 of the LGC provides that removal can be done only by order of the proper
court.
H. Recall
Definition
Nature
By whom exercised
Ground
How initiated
Election on Recall
Effectivity
Limitations
2000
I. Human Resources Development
Resignations
Preventive suspension of appointive local officials
What are the penalties which a local chief executive may impose?
J. Practice of Profession
Practice of profession
Who is authorized by law to be counsel of LGU’s?
(1) Provincial fiscal;

(2) Provincial attorney;
(3) Municipal attorney
In what instances can a private lawyer represent the LGU?
(1) When the municipality is an adverse party in a case involving the provincial
government or another municipality or city within the province (De Guia v. Auditor-
General)
Test as to when a local government official can secure

the services of private counsel: Nature of the action and the relief that is sought
(Alinsug v. RTC Branch 58)
K. The Local Boards
Title III. Other Provisions applicable to LGU’s
A. Settlement of Boundary disputes
B. Local Initiative and Referendum
Differentiate between initiative and referendum.
Procedure
What is the jurisdiction of the COMELEC as regards initiative?

Referendum?
2000
Book II. Local Government Taxation
How is income defined under the Local Government Code?
A. Taxation in General
What is the doctrine of supremacy of the national government over

local governments in the context of taxation?
What is the rule concerning taxing powers of LGU’s vis-à-vis the

national government?
GENERAL RULE: The taxing powers of LGU’s cannot extend to the levy of
taxes, fees and charges of any kind on the National government, its
agencies and instrumentalities and LGU’s. (LGC 133)
Exception: Real property taxes (LGC 232)
Exception to exception: (LGC 234)
What are the tax remedies available to the taxpayer?
Appeal to DOJ Appeal to Board of Payment under

secretary Assessment protest, with appeal
(LGC 187) Appeals to BAA
(LGC 226) (LGC 252)
GROUND Question on Non-satisfaction

constitutionality or with action of
legality assessor
PERIOD Within 30 days from Within 60 days

effectivity from date of receipt
of written notice of
assessment
2000
B. Real Property Taxation
Who may levy real property tax?
(1) Provinces;
(2) Cities;
(3) Municipalities within the Metro Manila area (LGC 232)
C. Local Fiscal Administration
D. Property and Supply Management in the LGU’s
E. Internal Revenue Allocation

2000
Part III. Local Government Units
1. The Barangay
A. Katarungay Pambarangay
B. Sangguniang Kabataan
2. The Municipality
3. The City
4. The Province
5. Appointive Local Officials common to all

municipalities, cities, and provinces
6. Leagues of LGUs and elective officials
Miscellaneous and Final Provisions
I. Provisions for implementation
II. Transitory provisions
III. Application of the code to LGUs in the autonomous regions
A. ARMM
B. CAR
IV. The Metropolitan Manila Development Authority
What is the jurisdiction of the MMDA?
What are the duties of the MMDA?

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Law on Local Government 1

Prof. Dan Gatmaytan, 1st semester, AY 1999-

A. Constitutional Basis -- Article X, 1987 Constitution

B. Innovations in the law on local governments introduced by the Local

(1) Devolution of basic services (e.g. health, environment, etc.) to LGUs;

C. Effectivity : LGC Secs. 5(d), 536

Book I: General Provisions

A. The Code: Policy and Application

(1) Local government, decentralization, autonomy

Local autonomy: power of LGUs to decide for themselves on certain

Decentralization: devolution of national administration (not power)

Deconcentration:flow of autonomy from the national government

Devolution: act by which the national government confers

the transfer of power and authority from the

Differentiate decentralization of administration from

Decentralization of Decentralization of Power

Delegation by the central Abdication of political power in

Local government units Autonomous regions

sectors of the community before any project or program is

LGC Sec. 26: Duty of National Government Agencies in the Maintenance

It shall be the duty of every national agency or

to consult with the LGUs, NGOs, and other sectors

 the goals and objectives of the project or

LGC Sec. 27: No project or program shall be implemented by

(1) the consultations mentioned above are

(2) prior approval of the sanggunian concerned is

Note: Occupants in areas where such projects are to be implemented

Comment: Memorandum Circular No. 52 (1993) provides that all

(3) Scope of application

(4) Merger of administrative regions

 Administrative regions are mere groupings of contiguous provinces for

 While the power to merge administrative regions is not expressly provided

(5) Rules of interpretation

Provision on power of LGU: Liberally interpreted in its favor. In case of

Tax exemption, incentive, Construed strictly against the person

General welfare provisions: Liberally interpreted to give more power to

Where there is a controversy Customs and traditions in the place where

B. General Power and Attributes

(1) Creation of LGUs

Who may create, divide, merge, abolish, or substantially alter

Congress : province, city or municipality

*Note: Recommendation of sangguniang bayan

and the matter of separate district representation being merely ancillary

• In the creation of barangays, there is no minimum requirement for area

• The creation of LGU’s is a purely legislative act. HOWEVER, LGU’s

Can a statute lend color of validity to an attempted organization of a municipality

However, even though the municipality of Balabagan could not be considered a

(2) Political and corporate nature of LGU’s

Differentiate the political nature and corporate nature of LGUs.

Sec. 15, LGC Political subdivision of Corporate entity

Lidasan v. COMELEC Instrumentality of the Agency of community in

Torio v. Fontanilla Administering powers of Exercising powers for the

Liability of LGU’s No liability provided that Respondeat superior

Examples of governmental activities:

 Regulations against fire, disease;

Examples of proprietary / corporate activities:

(3) General Welfare

(1) Powers expressly granted to the LGU;

What duties do LGUs have under the general welfare clause?

 Preservation and enrichment of culture;

What are the 2 branches of the general welfare clause?

Ordinances / acts deemed ultra vires and void:

 An ordinance imposing a cadaver transfer fee which is payable whenever