42 ichong vs hernandez

7/23/2019 42 Ichong vs Hernandez

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Republic of the Philippines | SUPREME COURT | Manila | EN BANC | G.R. No. L!""# |Ma$ %&' &"#!LAO H. ICHONG, in his own behalf and in behalf of other alien residents,corporations and partnerships adversely aected. by Repblic Act No.!!"#, petitioner,vs.

$AI%& H&RNAN'&(, )ecretary of *inance, and %ARC&LINO )AR%I&N+O, City+reasrer of %anila, respondents.O(aeta' Lichauco an) Pica(o an) S$cip' *uisu+bin,' Sala(a- an) Associates fo-petitione-.Oce of the Solicito- Gene-al A+b-osio Pa)illa an) Solicito- Paci/co P. )e Cast-o fo--espon)ent Sec-eta-$ of 0inance.Cit$ 0iscal Eu,enio An,eles an) Assistant Cit$ 0iscal Eulo,io S. Se--ano fo--espon)ent Cit$ T-easu-e-.1ionisio Re$es as A+icus Cu-iae.Ma-cial G. Men)iola as A+icus Cu-iae.E+iliano R. Na2a--o as A+icus Cu-iae.LABRA1OR' 3.4

I. +he case and isse, in eneral

This Cou-t has befo-e it the )elicate tas5 of passin, upon the 2ali)it$ an)constitutionalit$ of a le,islati2e enact+ent' fun)a+ental an) fa--eachin, insi,ni/cance. The enact+ent poses 6uestions of )ue p-ocess' police po7e- an) e6ualp-otection of the la7s. 8t also poses an i+po-tant issue of fact' that is 7hethe- thecon)itions 7hich the )ispute) la7 pu-po-ts to -e+e)$ -eall$ o- actuall$ e9ist.A)+itte)l$ sp-in,in, f-o+ a )eep' +ilitant' an) positi2e nationalistic i+pulse' the la7pu-po-ts to p-otect citi(en an) count-$ f-o+ the alien -etaile-. Th-ou,h it' an) 7ithinthe /el) of econo+$ it -e,ulates' Con,-ess atte+pts to t-anslate national aspi-ationsfo- econo+ic in)epen)ence an) national secu-it$' -oote) in the )-i2e an) u-,e fo-national su-2i2al an) 7elfa-e' into a conc-ete an) tan,ible +easu-es )esi,ne) to f-eethe national -etaile- f-o+ the co+petin, )o+inance of the alien' so that the count-$an) the nation +a$ be f-ee f-o+ a suppose) econo+ic )epen)ence an) bon)a,e. 1othe facts an) ci-cu+stances :ustif$ the enact+ent;

II. -ertinent provisions of Repblic Act No. !!"#

Republic Act No. &&<= is entitle) >An Act to Re,ulate the Retail Business.> 8n e?ect itnationali(es the -etail t-a)e business. The +ain p-o2isions of the Act a-e4 @& ap-ohibition a,ainst pe-sons' not citi(ens of the Philippines' an) a,ainst associations'pa-tne-ships' o- co-po-ations the capital of 7hich a-e not 7holl$ o7ne) b$ citi(ens of the Philippines' f-o+ en,a,in, )i-ectl$ o- in)i-ectl$ in the -etail t-a)e @ ane9ception f-o+ the abo2e p-ohibition in fa2o- of aliens actuall$ en,a,e) in sai)business on Ma$ &#' &"#D' 7ho a-e allo7e) to continue to en,a,e) the-ein' unlessthei- licenses a-e fo-feite) in acco-)ance 7ith the la7' until thei- )eath o- 2olunta-$-eti-e+ent in case of natu-al pe-sons' an) fo- ten $ea-s afte- the app-o2al of the Act

o- until the e9pi-ation of te-+ in case of :u-i)ical pe-sons @% an e9ception the-ef-o+in fa2o- of citi(ens an) :u-i)ical entities of the Unite) States @D a p-o2ision fo- thefo-feitu-e of licenses @to en,a,e in the -etail business fo- 2iolation of the la7s onnationali(ation' cont-ol 7ei,hts an) +easu-es an) labo- an) othe- la7s -elatin, tot-a)e' co++e-ce an) in)ust-$ @# a p-ohibition a,ainst the establish+ent o- openin,b$ aliens actuall$ en,a,e) in the -etail business of a))itional sto-es o- b-anches of -etail business' @ a p-o2ision -e6ui-in, aliens actuall$ en,a,e) in the -etail businessto p-esent fo- -e,ist-ation 7ith the p-ope- autho-ities a 2e-i/e) state+ent conce-nin,thei- businesses' ,i2in,' a+on, othe- +atte-s' the natu-e of the business' thei-



assets an) liabilities an) thei- oces an) p-incipal oces of :u)icial entities an) @!a p-o2ision allo7in, the hei-s of aliens no7 en,a,e) in the -etail business 7ho )ie' tocontinue such business fo- a pe-io) of si9 +onths fo- pu-poses of li6ui)ation.

III. Gronds pon which petition is basedAnswer thereto

Petitione-' fo- an) in his o7n behalf an) on behalf of othe- alien -esi)entsco-po-ations an) pa-tne-ships a)2e-sel$ a?ecte) b$ the p-o2isions of Republic Act.No. &&<=' b-ou,ht this action to obtain a :u)icial )ecla-ation that sai) Act isunconstitutional' an) to en:oin the Sec-eta-$ of 0inance an) all othe- pe-sons actin,un)e- hi+' pa-ticula-l$ cit$ an) +unicipal t-easu-e-s' f-o+ enfo-cin, its p-o2isions.Petitione- attac5s the constitutionalit$ of the Act' conten)in, that4 @& it )enies toalien -esi)ents the e6ual p-otection of the la7s an) )ep-i2es of thei- libe-t$ an)p-ope-t$ 7ithout )ue p-ocess of la7 @ the sub:ect of the Act is not e9p-esse) o-co+p-ehen)e) in the title the-eof @% the Act 2iolates inte-national an) t-eat$obli,ations of the Republic of the Philippines @D the p-o2isions of the Act a,ainst thet-ans+ission b$ aliens of thei- -etail business th-u he-e)ita-$ succession' an) those-e6ui-in, &==F 0ilipino capitali(ation fo- a co-po-ation o- entit$ to entitle it to en,a,ein the -etail business' 2iolate the spi-it of Sections & an) #' A-ticle 888 an) Section <of A-ticle 8H of the Constitution.

8n ans7e-' the Solicito-Gene-al an) the 0iscal of the Cit$ of Manila conten) that4 @&the Act 7as passe) in the 2ali) e9e-cise of the police po7e- of the State' 7hiche9e-cise is autho-i(e) in the Constitution in the inte-est of national econo+ic su-2i2al@ the Act has onl$ one sub:ect e+b-ace) in the title @% no t-eat$ o- inte-nationalobli,ations a-e inf-in,e) @D as -e,a-)s he-e)ita-$ succession' onl$ the fo-+ isa?ecte) but the 2alue of the p-ope-t$ is not i+pai-e)' an) the institution of inhe-itance is onl$ of statuto-$ o-i,in.

I/. -reli0inary consideration of leal principles involved

a. The police po7e-. I

The-e is no 6uestion that the Act 7as app-o2e) in the e9e-cise of the police po7e-'but petitione- clai+s that its e9e-cise in this instance is atten)e) b$ a 2iolation of theconstitutional -e6ui-e+ents of )ue p-ocess an) e6ual p-otection of the la7s. Butbefo-e p-ocee)in, to the consi)e-ation an) -esolution of the ulti+ate issue in2ol2e)'it 7oul) be 7ell to bea- in +in) ce-tain basic an) fun)a+ental' albeit p-eli+ina-$'consi)e-ations in the )ete-+ination of the e2e- -ecu--ent conJict bet7een policepo7e- an) the ,ua-antees of )ue p-ocess an) e6ual p-otection of the la7s. Khat isthe scope of police po7e-' an) ho7 a-e the )ue p-ocess an) e6ual p-otection clauses-elate) to it; Khat is the p-o2ince an) po7e- of the le,islatu-e' an) 7hat is the

function an) )ut$ of the cou-ts; These consi)e-ation +ust be clea-l$ an) co--ectl$un)e-stoo) that thei- application to the facts of the case +a$ be b-ou,ht fo-th 7ithcla-it$ an) the issue acco-)in,l$ -esol2e).

8t has been sai) the police po7e- is so fa- -eachin, in scope' that it has beco+eal+ost i+possible to li+it its s7eep. As it )e-i2es its e9istence f-o+ the 2e-$e9istence of the State itself' it )oes not nee) to be e9p-esse) o- )e/ne) in its scopeit is sai) to be coe9tensi2e 7ith selfp-otection an) su-2i2al' an) as such it is the+ost positi2e an) acti2e of all ,o2e-n+ental p-ocesses' the +ost essential' insistent



an) illi+itable. Especiall$ is it so un)e- a +o)e-n )e+oc-atic f-a+e7o-5 7he-e the)e+an)s of societ$ an) of nations ha2e +ultiplie) to al+ost uni+a,inablep-opo-tions the /el) an) scope of police po7e- has beco+e al+ost boun)less' :ustas the /el)s of public inte-est an) public 7elfa-e ha2e beco+e al+ost alle+b-acin,an) ha2e t-anscen)e) hu+an fo-esi,ht. Othe-7ise state)' as 7e cannot fo-esee thenee)s an) )e+an)s of public inte-est an) 7elfa-e in this constantl$ chan,in, an)

p-o,-essi2e 7o-l)' so 7e cannot )eli+it befo-ehan) the e9tent o- scope of policepo7e- b$ 7hich an) th-ou,h 7hich the State see5s to attain o- achie2e inte-est o-7elfa-e. So it is that Constitutions )o not )e/ne the scope o- e9tent of the policepo7e- of the State 7hat the$ )o is to set fo-th the li+itations the-eof. The +osti+po-tant of these a-e the )ue p-ocess clause an) the e6ual p-otection clause.

b. Li+itations on police po7e-. I

The basic li+itations of )ue p-ocess an) e6ual p-otection a-e foun) in the follo7in,p-o2isions of ou- Constitution4

SECT8ON &. @& No pe-son shall be )ep-i2e) of life' libe-t$ o- p-ope-t$ 7ithout )uep-ocess of la7' no- an$ pe-son be )enie) the e6ual p-otection of the la7s. @A-ticle 888'Phil. Constitution

These constitutional ,ua-antees 7hich e+bo)$ the essence of in)i2i)ual libe-t$ an)f-ee)o+ in )e+oc-acies' a-e not li+ite) to citi(ens alone but a-e a)+itte)l$ uni2e-salin thei- application' 7ithout -e,a-) to an$ )i?e-ences of -ace' of colo-' o- of nationalit$. @ic5 Ko 2s. op5ins' %=' L. e). =' .

c. The' e6ual p-otection clause. I

The e6ual p-otection of the la7 clause is a,ainst un)ue fa2o- an) in)i2i)ual o- classp-i2ile,e' as 7ell as hostile )isc-i+ination o- the opp-ession of ine6ualit$. 8t is notinten)e) to p-ohibit le,islation' 7hich is li+ite) eithe- in the ob:ect to 7hich it is)i-ecte) o- b$ te--ito-$ 7ithin 7hich is to ope-ate. 8t )oes not )e+an) absolutee6ualit$ a+on, -esi)ents it +e-el$ -e6ui-es that all pe-sons shall be t-eate)ali5e' un)e- li5e ci-cu+stances an) con)itions both as to p-i2ile,es confe--e) an)liabilities enfo-ce). The e6ual p-otection clause is not inf-in,e) b$ le,islation 7hichapplies onl$ to those pe-sons fallin, 7ithin a speci/e) class' if it applies ali5e to allpe-sons 7ithin such class' an) -easonable ,-oun)s e9ists fo- +a5in, a )istinctionbet7een those 7ho fall 7ithin such class an) those 7ho )o not. @ Coole$'Constitutional Li+itations' <D<#.

). The )ue p-ocess clause. I

The )ue p-ocess clause has to )o 7ith the -easonableness of le,islation enacte) in

pu-suance of the police po7e-. 8s the-e public inte-est' a public pu-pose is public7elfa-e in2ol2e); 8s the Act -easonabl$ necessa-$ fo- the acco+plish+ent of thele,islatu-es pu-pose is it not un-easonable' a-bit-a-$ o- opp-essi2e; 8s the-esucient foun)ation o- -eason in connection 7ith the +atte- in2ol2e) o- has the-enot been a cap-icious use of the le,islati2e po7e-; Can the ai+s concei2e) beachie2e) b$ the +eans use)' o- is it not +e-el$ an un:usti/e) inte-fe-ence 7ithp-i2ate inte-est; These a-e the 6uestions that 7e as5 7hen the )ue p-ocess test isapplie).



The conJict' the-efo-e' bet7een police po7e- an) the ,ua-antees of )ue p-ocess an)e6ual p-otection of the la7s is +o-e appa-ent than -eal. P-ope-l$ -elate)' the po7e-an) the ,ua-antees a-e suppose) to coe9ist. The balancin, is the essence o-' shall itbe sai)' the in)ispensable +eans fo- the attain+ent of le,iti+ate aspi-ations of an$)e+oc-atic societ$. The-e can be no absolute po7e-' 7hoe2e- e9e-cises it' fo- that7oul) be t$-ann$. et the-e can neithe- be absolute libe-t$' fo- that 7oul) +ean

license an) ana-ch$. So the State can )ep-i2e pe-sons of life' libe-t$ an) p-ope-t$'p-o2i)e) the-e is )ue p-ocess of la7 an) pe-sons +a$ be classi/e) into classes an),-oups' p-o2i)e) e2e-$one is ,i2en the e6ual p-otection of the la7. The test o-stan)a-)' as al7a$s' is -eason. The police po7e- le,islation +ust be /-+l$ ,-oun)e)on public inte-est an) 7elfa-e' an) a -easonable -elation +ust e9ist bet7eenpu-poses an) +eans. An) if )istinction an) classi/cation has been +a)e' the-e +ustbe a -easonable basis fo- sai) )istinction.

e. Le,islati2e )isc-etion not sub:ect to :u)icial -e2ie7. I

No7' in this +atte- of e6uitable balancin,' 7hat is the p-ope- place an) -ole of thecou-ts; 8t +ust not be o2e-loo5e)' in the /-st place' that the le,islatu-e' 7hich is theconstitutional -eposito-$ of police po7e- an) e9e-cises the p-e-o,ati2e of )ete-+inin,the polic$ of the State' is b$ fo-ce of ci-cu+stances p-i+a-il$ the :u),e of necessit$'a)e6uac$ o- -easonableness an) 7is)o+' of an$ la7 p-o+ul,ate) in the e9e-cise of the police po7e-' o- of the +easu-es a)opte) to i+ple+ent the public polic$ o- toachie2e public inte-est.On the othe- han)' cou-ts' althou,h (ealous ,ua-)ians of in)i2i)ual libe-t$ an) -i,ht'ha2e ne2e-theless e2ince) a -eluctance to inte-fe-e 7ith the e9e-cise of thele,islati2e p-e-o,ati2e. The$ ha2e )one so ea-l$ 7he-e the-e has been a clea-' patento- palpable a-bit-a-$ an) un-easonable abuse of the le,islati2e p-e-o,ati2e.Mo-eo2e-' cou-ts a-e not suppose) to o2e--i)e le,iti+ate polic$' an) cou-ts ne2e-in6ui-e into the 7is)o+ of the la7.

/. &cono0ic proble0s soht to be re0edied

Kith the abo2e consi)e-ations in +in)' 7e 7ill no7 p-ocee) to )el2e )i-ectl$ into theissue in2ol2e). 8f the )ispute) le,islation 7e-e +e-el$ a -e,ulation' as its titlein)icates' the-e 7oul) be no 6uestion that it falls 7ithin the le,iti+ate scope of le,islati2e po7e-. But it ,oes fu-the- an) p-ohibits a ,-oup of -esi)ents' the aliens'f-o+ en,a,in, the-ein. The p-oble+ beco+es +o-e co+ple9 because its sub:ect is aco++on' t-a)e o- occupation' as ol) as societ$ itself' 7hich f-o+ the i++e+o-ial hasal7a$s been open to -esi)ents' i--especti2e of -ace' colo- o- citi(enship.

a. 8+po-tance of -etail t-a)e in the econo+$ of the nation. I

8n a p-i+iti2e econo+$ 7he-e fa+ilies p-o)uce all that the$ consu+e an) consu+eall that the$ p-o)uce' the )eale-' of cou-se' is un5no7n. But as ,-oup life )e2elopsan) fa+ilies be,in to li2e in co++unities p-o)ucin, +o-e than 7hat the$ consu+ean) nee)in, an in/nite nu+be- of thin,s the$ )o not p-o)uce' the )eale- co+es into

e9istence. As 2illa,es )e2elop into bi, co++unities an) speciali(ation in p-o)uctionbe,ins' the )eale-s i+po-tance is enhance). Un)e- +o)e-n con)itions an) stan)a-)sof li2in,' in 7hich +ans nee)s ha2e +ultiplie) an) )i2e-si/e) to unli+ite) e9tentsan) p-opo-tions' the -etaile- co+es as essential as the p-o)uce-' because th-u hi+the in/nite 2a-iet$ of a-ticles' ,oo)s an) nee)e) fo- )ail$ life a-e place) 7ithin theeas$ -each of consu+e-s. Retail )eale-s pe-fo-+ the functions of capilla-ies in thehu+an bo)$' th-u 7hich all the nee)e) foo) an) supplies a-e +iniste-e) to +e+be-sof the co++unities co+p-isin, the nation.



The-e cannot be an$ 6uestion about the i+po-tance of the -etaile- in the life of theco++unit$. e +iniste-s to the -esi)ents )ail$ nee)s' foo) in all its inc-easin, fo-+s'an) the 2a-ious little ,a),ets an) thin,s nee)e) fo- ho+e an) )ail$ life. e p-o2i)eshis custo+e-s a-oun) his sto-e 7ith the -ice o- co-n' the /sh' the salt' the 2ine,a-'the spices nee)e) fo- the )ail$ coo5in,. e has cloths to sell' e2en the nee)le an)the th-ea) to se7 the+ o- )a-n the clothes that 7ea- out. The -etaile-' the-efo-e'

f-o+ the lo7l$ pe))le-' the o7ne- of a s+all sa-isa-i sto-e' to the ope-ato- of a)epa-t+ent sto-e o-' a supe-+a-5et is so +uch a pa-t of )a$to)a$ e9istence.

b. The alien -etaile-s t-ait. I

The alien -etaile- +ust ha2e sta-te) pl$in, his t-a)es in this count-$ in the bi,,e-cente-s of population @Ti+e the-e 7as 7hen he 7as un5no7n in p-o2incial to7ns an)2illa,es. Slo7l$ but ,-a)uall$ be in2a)e) to7ns an) 2illa,es no7 he p-e)o+inatesin the cities an) bi, cente-s of population. e e2en pionee-s' in fa- a7a$ noo5s 7he-ethe be,innin,s of co++unit$ life appea-' +iniste-in, to the )ail$ nee)s of the-esi)ents an) pu-chasin, thei- a,-icultu-al p-o)uce fo- sale in the to7ns. 8t is anun)eniable fact that in +an$ co++unities the alien has -eplace) the nati2e -etaile-.e has sho7n in this t-a)e' in)ust-$ 7ithout li+it' an) the patience an) fo-bea-anceof a sla2e.

1e-o,ato-$ epithets a-e hu-le) at hi+' but he lau,hs these o? 7ithout +u-+u-insults of illb-e) an) insolent nei,hbo-s an) custo+e-s a-e +a)e in his face' but hehee)s the+ not' an) he fo-,ets an) fo-,i2es. The co++unit$ ta5es note of hi+' as heappea-s to be ha-+less an) e9t-e+el$ useful.

c. Alle,e) alien cont-ol an) )o+inance. I

The-e is a ,ene-al feelin, on the pa-t of the public' 7hich appea-s to be t-ue to fact'about the cont-ollin, an) )o+inant position that the alien -etaile- hol)s in thenations econo+$. 0oo) an) othe- essentials' clothin,' al+ost all a-ticles of )ail$ life-each the -esi)ents +ostl$ th-ou,h hi+. 8n bi, cities an) cente-s of population he hasac6ui-e) not onl$ p-e)o+inance' but appa-ent cont-ol o2e- )ist-ibution of al+ost all5in)s of ,oo)s' such as lu+be-' ha-)7a-e' te9tiles' ,-oce-ies' )-u,s' su,a-' Jou-',a-lic' an) sco-es of othe- ,oo)s an) a-ticles. An) 7e-e it not fo- so+e nationalco-po-ations li5e the Na-ic' the Na+a-co' the 0aco+as an) the Acefa' his cont-ol o2e-p-incipal foo)s an) p-o)ucts 7oul) easil$ beco+e full an) co+plete.

Petitione- )enies that the-e is alien p-e)o+inance an) cont-ol in the -etail t-a)e. 8none b-eath it is sai) that the fea- is unfoun)e) an) the th-eat is i+a,ine) in anothe-'it is cha-,e) that the la7 is +e-el$ the -esult of -a)icalis+ an) pu-e an) unabashe)nationalis+. Aliena,e' it is sai)' is not an ele+ent of cont-ol also so +an$

un+ana,eable facto-s in the -etail business +a5e cont-ol 2i-tuall$ i+possible. The/-st a-,u+ent' 7hich b-in,s up an issue of fact +e-its se-ious consi)e-ation. Theothe-s a-e +atte-s of opinion 7ithin the e9clusi2e co+petence of the le,islatu-e an)be$on) ou- p-e-o,ati2e to pass upon an) )eci)e.

Assets G-oss Sales

ea- an) Retaile-sNationalit$

No.Establish+ents

PesosPe- cent1ist-ibution

PesosPe- 1ist-



&"D&4

0ilipino .......... &='!& =='%%'&%< ##.< &!D'&<&'"D #&.!

Chinese ........... &#'%# &&<'%D<'" %."< &D<'<&%'%" DD.

Othe-s ............ &'D D='&<!'="= &&.= &%'%='%" D.=#

&"D!40ilipino .......... &&&'&=! =<'#<'"D #.=# !"'#<%'%%% #!.=

Chinese ........... &%'!!D &='&#'&< %%.# =#'!=&'&%D D&."

Othe-s ........... %#D <'!&'= .D" D'"!'&< &.=&

&"D<4 @Census

0ilipino .......... &&%'%& &%'%D'D !.%= D!'&&'! =.#

Chinese .......... &'=<! "%'&##'D#" ".%< "D'<"D'! %<.

Othe-s .......... D &='#&D'!# %.% "'""#'D= &."

&"D"4

0ilipino .......... &&%'#" &%'D#&'= =.<" D'#%'"=& #%.D

Chinese .......... &'D< &#'%'%% %#.! %"'D&D'<!# D#.%

Othe-s .......... D< &'=#'%# %.%" &='=!<'%D &.&!

&"#&4

0ilipino ......... &&"'%# D'=#%'= &.=" D'=#<'=# #%.=

Chinese .......... &!'D" &%D'%#'%=% %.= D=D'D<&'%<D D.=

Othe-s .......... %D! <'&D'=# .%& !'D#'%! <!

The best e2i)ence a-e the statistics on the -etail t-a)e' 7hich put )o7n the /,u-es in

blac5 an) 7hite. Bet7een the constitutional con2ention $ea- @&"%#' 7hen the fea- of alien )o+ination an) cont-ol of the -etail t-a)e al-ea)$ /lle) the +in)s of ou- lea)e-s7ith fea-s an) +is,i2in,s' an) the $ea- of the enact+ent of the nationali(ation of the-etail t-a)e act @&"#D' ocial statistics un+ista5abl$ point out to the e2e-inc-easin,)o+inance an) cont-ol b$ the alien of the -etail t-a)e' as 7itness the follo7in,tables4

AHERAGEASSETS AN1 GROSS SALES PER ESTABL8SMENT

ea- an) Retaile-sNationalit$

8te+Assets@Pesos

G-oss Sales@Pesos

&"D&4

0ilipino ............................................. &'<!< &'%%

Chinese .............................................. !'!=! "'"&

Othe-s ............................................... D'D&# <'<&



&"D!4

0ilipino ............................................. &'<!< '#&

Chinese ........................................... !'!=! &D'"%D

Othe-s .............................................. D'!D" &%'"&"

&"D<4 @Census

0ilipino ............................................. &'<!< D'&&&

Chinese ............................................. !'!=! D'%"<

Othe-s .............................................. D'"& %'<

&"D"4

0ilipino ............................................. &'<!< D'="

Chinese .............................................. !'!=! D'&#

Othe-s .............................................. D'<=! ='!%!

&"#&4

0ilipino ............................................. &'<!! %'"=#

Chinese ............................................. !'!=! %%'=!

Othe-s ............................................... D'<D '=%%

@Esti+ate) Assets an) G-oss Sales of Retail Establish+ents' B$ ea- an) Nationalit$of O7ne-s' Bench+a-54 &"D< Census' issue) b$ the Bu-eau of Census an) Statistics'1epa-t+ent of Co++e-ce an) 8n)ust-$ pp. &<&" of Ans7e-.

The abo2e statistics )o not inclu)e co-po-ations an) pa-tne-ships' 7hile the /,u-eson 0ilipino establish+ents al-ea)$ inclu)e +e-e +a-5et 2en)o-s' 7hose capital isnecessa-il$ s+all..

The abo2e /,u-es -e2eal that in pe-centa,e )ist-ibution of assets an) ,-oss sales'alien pa-ticipation has stea)il$ inc-ease) )u-in, the $ea-s. 8t is t-ue' of cou-se' that0ilipinos ha2e the e),e in the nu+be- of -etaile-s' but aliens +o-e than +a5e up fo-the nu+e-ical ,ap th-ou,h thei- assets an) ,-oss sales' 7hich a2e-a,e bet7een si9an) se2en ti+es those of the 2e-$ +an$ 0ilipino -etaile-s. Nu+be-s in -etaile-s' he-e')o not i+pl$ supe-io-it$ the alien in2ests +o-e capital' bu$s an) sells si9 to se2enti+es +o-e' an) ,ains +uch +o-e. The sa+e ocial -epo-t' pointin, out to the5no7n p-e)o+inance of fo-ei,n ele+ents in the -etail t-a)e' -e+a-5s that the 0ilipino-etaile-s 7e-e la-,el$ en,a,e) in +ino- -etaile- ente-p-ises. As obse-2e) b$-espon)ents' the nati2e in2est+ent is thinl$ sp-ea)' an) the 0ilipino -etaile- isp-acticall$ helpless in +atte-s of capital' c-e)it' p-ice an) suppl$.



). Alien cont-ol an) th-eat' sub:ect of app-ehension in Constitutional con2ention.I

8t is this )o+ination an) cont-ol' 7hich 7e belie2e has been sucientl$ sho7n toe9ist' that is the le,islatu-es ta-,et in the enact+ent of the )ispute) nationali(ation

7oul) ne2e- ha2e been a)opte). The f-a+e-s of ou- Constitution also belie2e) in thee9istence of this alien )o+inance an) cont-ol 7hen the$ app-o2e) a -esolutioncate,o-icall$ )ecla-in, a+on, othe- thin,s' that >it is the sense of the Con2entionthat the public inte-est -e6ui-es the nationali(ation of the -etail t-a)e . . . .> @88A-ue,o' The 0-a+in, of the Philippine Constitution' %' 6uote) on pa,e ! of Petitione-. That 7as t7ent$t7o $ea-s a,o an) the e2ents since then ha2e not beeneithe- pleasant o- co+fo-tin,.

1ean Sinco of the Uni2e-sit$ of the Philippines Colle,e of La7' co++entin, on thepat-i+on$ clause of the P-ea+ble opines that the fathe-s of ou- Constitution 7e-e+e-el$ t-anslatin, the ,ene-al p-eoccupation of 0ilipinos >of the )an,e-s f-o+ alieninte-ests that ha) al-ea)$ b-ou,ht un)e- thei- cont-ol the co++e-cial an) othe-econo+ic acti2ities of the count-$> @Sinco' Phil. Political La7' &=th e).' p. &&D an)anal$(in, the conce-n of the +e+be-s of the constitutional con2ention fo- theecono+ic life of the citi(ens' in connection 7ith the nationalistic p-o2isions of theConstitution' he sa$s4

But the-e has been a ,ene-al feelin, that alien )o+inance o2e- the econo+ic life of the count-$ is not )esi-able an) that if such a situation shoul) -e+ain' politicalin)epen)ence alone is no ,ua-antee to national stabilit$ an) st-en,th. 0ilipino p-i2atecapital is not bi, enou,h to 7-est f-o+ alien han)s the cont-ol of the nationalecono+$. Mo-eo2e-' it is but of -ecent fo-+ation an) hence' la-,el$ ine9pe-ience)'ti+i) an) hesitant. Un)e- such con)itions' the ,o2e-n+ent as the inst-u+entalit$ of the national 7ill' has to step in an) assu+e the initiati2e' if not the lea)e-ship' in thest-u,,le fo- the econo+ic f-ee)o+ of the nation in so+e7hat the sa+e 7a$ that it)i) in the c-usa)e fo- political f-ee)o+.

Thus . . . it @the Constitution en2isa,es an o-,ani(e) +o2e+ent fo- the p-otection of the nation not onl$ a,ainst the possibilities of a-+e) in2asion but also a,ainst itsecono+ic sub:u,ation b$ alien inte-ests in the econo+ic /el). @Phil. Political La7 b$Sinco' &=th e).' p. D!.

Belief in the e9istence of alien cont-ol an) p-e)o+inance is felt in othe- 6ua-te-s.0ilipino business+en' +anufactu-e-s an) p-o)uce-s belie2e so the$ fea- the )an,e-sco+in, f-o+ alien cont-ol' an) the$ e9p-ess senti+ents of econo+ic in)epen)ence.Kitness the-eto is Resolution No. &' app-o2e) on 3ul$ &<' &"#%' of the 0ifth Nationalcon2ention of 0ilipino Business+en' an) a si+ila- -esolution' app-o2e) on Ma-ch ='&"#D' of the Secon) National Con2ention of Manufactu-e-s an) P-o)uce-s. The +an inthe st-eet also belie2es' an) fea-s' alien p-e)o+inance an) cont-ol so ou-ne7spape-s' 7hich ha2e e)ito-iall$ pointe) out not onl$ to cont-ol but to alien

st-an,lehol). Ke' the-efo-e' /n) alien )o+ination an) cont-ol to be a fact' a -ealit$p-o2e) b$ ocial statistics' an) felt b$ all the sections an) ,-oups that co+pose the0ilipino co++unit$.

e. 1an,e-s of alien cont-ol an) )o+inance in -etail. I

But the )an,e-s a-isin, f-o+ alien pa-ticipation in the -etail t-a)e )oes not see+ tolie in the p-e)o+inance alone the-e is a p-e2ailin, feelin, that such p-e)o+inance+a$ t-ul$ en)an,e- the national inte-est. Kith a+ple capital' unit$ of pu-pose an)



action an) tho-ou,h o-,ani(ation' alien -etaile-s an) +e-chants can act in suchco+plete unison an) conce-t on such 2ital +atte-s as the /9in, of p-ices' the)ete-+ination of the a+ount of ,oo)s o- a-ticles to be +a)e a2ailable in the +a-5et'an) e2en the choice of the ,oo)s o- a-ticles the$ 7oul) o- 7oul) not pat-oni(e o-)ist-ibute' that fea-s of )islocation of the national econo+$ an) of the co+pletesubse-2ience of national econo+$ an) of the consu+in, public a-e not enti-el$

unfoun)e). Nationals' p-o)uce-s an) consu+e-s ali5e can be place) co+pletel$ atthei- +e-c$.

This is easil$ illust-ate). Suppose an a-ticle of )ail$ use is )esi-e) to be p-esc-ibe) b$the aliens' because the p-o)uce- o- i+po-te- )oes not o?e- the+ sucient p-o/ts' o-because a ne7 co+petin, a-ticle o?e-s bi,,e- p-o/ts fo- its int-o)uction. All thataliens 7oul) )o is to a,-ee to -efuse to sell the /-st a-ticle' eli+inatin, it f-o+ thei-stoc5s' o?e-in, the ne7 one as a substitute. ence' the p-o)uce-s o- i+po-te-s of thep-esc-ibe) a-ticle' o- its consu+e-s' /n) the a-ticle su))enl$ out of the p-esc-ibe)a-ticle' o- its consu+e-s' /n) the a-ticle su))enl$ out of ci-culation. 0-ee)o+ of t-a)eis thus cu-taile) an) f-ee ente-p-ise co--espon)in,l$ supp-esse).

Ke can e2en ,o fa-the- than theo-etical illust-ations to sho7 the pe-niciousinJuences of alien )o+ination. G-a2e abuses ha2e cha-acte-i(e) the e9e-cise of the-etail t-a)e b$ aliens. 8t is a fact 7ithin :u)icial notice' 7hich cou-ts of :ustice +a$ notp-ope-l$ o2e-loo5 o- i,no-e in the inte-ests of t-uth an) :ustice' that the-e e9ists a,ene-al feelin, on the pa-t of the public that alien pa-ticipation in the -etail t-a)e hasbeen atten)e) b$ a pe-nicious an) intole-able p-actices' the +ention of a fe7 of 7hich 7oul) suce fo- ou- pu-poses that at so+e ti+e o- othe- the$ ha2e co-ne-e)the +a-5et of essential co++o)ities' li5e co-n an) -ice' c-eatin, a-ti/cial sca-cities to :ustif$ an) enhance p-o/ts to un-easonable p-opo-tions that the$ ha2e hoa-)e)essential foo)s to the incon2enience an) p-e:u)ice of the consu+in, public' so +uchso that the Go2e-n+ent has ha) to establish the National Rice an) Co-n Co-po-ationto sa2e the public f-o+ thei- continuous hoa-)in, p-actices an) ten)encies that the$ha2e 2iolate) p-ice cont-ol la7s' especiall$ on foo)s an) essential co++o)ities' suchthat the le,islatu-e ha) to enact a la7 @Sec. "' Republic Act No. &&<' autho-i(in,thei- i++e)iate an) auto+atic )epo-tation fo- p-ice cont-ol con2ictions

that the$ ha2e sec-et co+binations a+on, the+sel2es to cont-ol p-ices' cheatin, theope-ation of the la7 of suppl$ an) )e+an) that the$ ha2e conni2e) to bo$cotthonest +e-chants an) t-a)e-s 7ho 7oul) not cate- o- $iel) to thei- )e+an)s' inunla7ful -est-aint of f-ee)o+ of t-a)e an) ente-p-ise. The$ a-e belie2e) b$ the publicto ha2e e2a)e) ta9 la7s' s+u,,le) ,oo)s an) +one$ into an) out of the lan)'2iolate) i+po-t an) e9po-t p-ohibitions' cont-ol la7s an) the li5e' in )e-ision an)conte+pt of la7ful autho-it$. 8t is also belie2e) that the$ ha2e en,a,e) in co--uptin,public ocials 7ith fabulous b-ibes' in)i-ectl$ causin, the p-e2alence of ,-aft an)co--uption in the Go2e-n+ent. As a +atte- of fact appeals to unsc-upulous aliensha2e been +a)e both b$ the Go2e-n+ent an) b$ thei- o7n la7ful )iplo+atic-ep-esentati2es' action that i+plie)l$ a)+its a p-e2ailin, feelin, about the e9istenceof +an$ of the abo2e p-actices.

The ci-cu+stances abo2e set fo-th c-eate 7ellfoun)e) fea-s that 7o-se thin,s +a$co+e in the futu-e. The p-esent )o+inance of the alien -etaile-' especiall$ in the bi,cente-s of population' the-efo-e' beco+es a potential sou-ce of )an,e- on occasionsof 7a- o- othe- cala+it$. Ke )o not ha2e he-e in this count-$ isolate) ,-oups of ha-+less aliens -etailin, ,oo)s a+on, nationals 7hat 7e ha2e a-e 7ello-,ani(e)an) po7e-ful ,-oups that )o+inate the )ist-ibution of ,oo)s an) co++o)ities in theco++unities an) bi, cente-s of population. The$ o7e no alle,iance o- lo$alt$ to theState' an) the State cannot -el$ upon the+ in ti+es of c-isis o- e+e-,enc$. Khile the



national hol)s his life' his pe-son an) his p-ope-t$ sub:ect to the nee)s of his count-$'the alien +a$ e2en beco+e the potential ene+$ of the State.

f. La7 enacte) in inte-est of national econo+ic su-2i2al an) secu-it$. I

Ke a-e full$ satis/e) upon a consi)e-ation of all the facts an) ci-cu+stances that the

)ispute) la7 is not the p-o)uct of -acial hostilit$' p-e:u)ice o- )isc-i+ination' but thee9p-ession of the le,iti+ate )esi-e an) )ete-+ination of the people' th-u thei-autho-i(e) -ep-esentati2es' to f-ee the nation f-o+ the econo+ic situation that hasunfo-tunatel$ been sa))le) upon it -i,htl$ o- 7-on,l$' to its )isa)2anta,e. The la7 isclea-l$ in the inte-est of the public' na$ of the national secu-it$ itself' an)in)isputabl$ falls 7ithin the scope of police po7e-' th-u 7hich an) b$ 7hich the Stateinsu-es its e9istence an) secu-it$ an) the sup-e+e 7elfa-e of its citi(ens.

/I. +he &1al -rotection Li0itation

a. Ob:ections to alien pa-ticipation in -etail t-a)e. I

The ne9t 6uestion that no7 poses solution is' 1oes the la7 )en$ the e6ual p-otectionof the la7s; As pointe) out abo2e' the +e-e fact of aliena,e is the -oot an) cause of the )istinction bet7een the alien an) the national as a t-a)e-. The alien -esi)ento7es alle,iance to the count-$ of his bi-th o- his a)opte) count-$ his sta$ he-e is fo-pe-sonal con2enience he is att-acte) b$ the lu-e of ,ain an) p-o/t. is ai+ o-pu-pose of sta$' 7e a)+it' is neithe- ille,iti+ate no- i++o-al' but he is natu-all$lac5in, in that spi-it of lo$alt$ an) enthusias+ fo- this count-$ 7he-e he te+po-a-il$sta$s an) +a5es his li2in,' o- of that spi-it of -e,a-)' s$+path$ an) consi)e-ation fo-his 0ilipino custo+e-s as 7oul) p-e2ent hi+ f-o+ ta5in, a)2anta,e of thei- 7ea5nessan) e9ploitin, the+. The faste- he +a5es his pile' the ea-lie- can the alien ,o bac5 tohis belo2e) count-$ an) his belo2e) 5in an) count-$+en. The e9pe-ience of thecount-$ is that the alien -etaile- has sho7n such utte- )is-e,a-) fo- his custo+e-s an)the people on 7ho+ he +a5es his p-o/t' that it has been foun) necessa-$ to a)optthe le,islation' -a)ical as it +a$ see+.

Anothe- ob:ection to the alien -etaile- in this count-$ is that he ne2e- -eall$ +a5es a,enuine cont-ibution to national inco+e an) 7ealth. e un)oubte)l$ cont-ibutes to,ene-al )ist-ibution' but the ,ains an) p-o/ts he +a5es a-e not in2este) in in)ust-iesthat 7oul) help the count-$s econo+$ an) inc-ease national 7ealth. The aliensinte-est in this count-$ bein, +e-el$ t-ansient an) te+po-a-$' it 7oul) in)ee) be illa)2ise) to continue ent-ustin, the 2e-$ i+po-tant function of -etail )ist-ibution to hishan)s.

The p-actices -eso-te) to b$ aliens in the cont-ol of )ist-ibution' as al-ea)$ pointe)out abo2e' thei- sec-et +anipulations of stoc5s of co++o)ities an) p-ices' thei- utte-)is-e,a-) of the 7elfa-e of thei- custo+e-s an) of the ulti+ate happiness of thepeople of the nation of 7hich the$ a-e +e-e ,uests' 7hich p-actices' +anipulationsan) )is-e,a-) )o not atten) the e9e-cise of the t-a)e b$ the nationals' sho7 the

e9istence of -eal an) actual' positi2e an) fun)a+ental )i?e-ences bet7een an alienan) a national 7hich full$ :ustif$ the le,islati2e classi/cation a)opte) in the -etailt-a)e +easu-e. These )i?e-ences a-e ce-tainl$ a 2ali) -eason fo- the State to p-efe-the national o2e- the alien in the -etail t-a)e. Ke 7oul) be )oin, 2iolence to fact an)-ealit$ 7e-e 7e to hol) that no -eason o- ,-oun) fo- a le,iti+ate )istinction can befoun) bet7een one an) the othe-.

b. 1i?e-ence in alien ai+s an) pu-poses sucient basis fo- )istinction. I



The abo2e ob:ectionable cha-acte-istics of the e9e-cise of the -etail t-a)e b$ thealiens' 7hich a-e actual an) -eal' fu-nish sucient ,-oun)s fo- le,islati2eclassi/cation of -etail t-a)e-s into nationals an) aliens. So+e +a$ )isa,-ee 7ith the7is)o+ of the le,islatu-es classi/cation. To this 7e ans7e-' that this is thep-e-o,ati2e of the la7+a5in, po7e-. Since the Cou-t /n)s that the classi/cation is

actual' -eal an) -easonable' an) all pe-sons of one class a-e t-eate) ali5e' an) as itcannot be sai) that the classi/cation is patentl$ un-easonable an) unfoun)e)' it is in)ut$ boun) to )ecla-e that the le,islatu-e acte) 7ithin its le,iti+ate p-e-o,ati2e an)it can not )ecla-e that the act t-anscen)s the li+it of e6ual p-otection establishe) b$the Constitution.

B-oa)l$ spea5in,' the po7e- of the le,islatu-e to +a5e )istinctions an) classi/cationsa+on, pe-sons is not cu-taile) o- )enie) b$ the e6ual p-otection of the la7s clause. The le,islati2e po7e- a)+its of a 7i)e scope of )isc-etion' an) a la7 can be 2iolati2eof the constitutional li+itation onl$ 7hen the classi/cation is 7ithout -easonablebasis. 8n a))ition to the autho-ities 7e ha2e ea-lie- cite)' 7e can also -efe- to thecase of Linse$ 2s. Natu-al Ca-bonic 0as Co. @&"&&' ## L. e).' %"' 7hich clea-l$ an)succinctl$ )e/ne) the application of e6ual p-otection clause to a la7 sou,ht to be2oi)e) as cont-a-$ the-eto4

. . . . >&. The e6ual p-otection clause of the 0ou-teenth A+en)+ent )oes not ta5ef-o+ the state the po7e- to classif$ in the a)option of police la7s' but a)+its of thee9e-cise of the 7i)e scope of )isc-etion in that -e,a-)' an) a2oi)s 7hat is )one onl$7hen it is 7ithout an$ -easonable basis' an) the-efo-e is pu-el$ a-bit-a-$. . Aclassi/cation ha2in, so+e -easonable basis )oes not o?en) a,ainst that clause+e-el$ because it is not +a)e 7ith +athe+atical nicet$' o- because in p-actice it-esults in so+e ine6ualit$. %. Khen the classi/cation in such a la7 is calle) in6uestion' if an$ state of facts -easonabl$ can be concei2e) that 7oul) sustain it' thee9istence of that state of facts at the ti+e the la7 7as enacte) +ust be assu+e). D.One 7ho assails the classi/cation in such a la7 +ust ca--$ the bu-)en of sho7in,that it )oes not -est upon an$ -easonable basis but is essentiall$ a-bit-a-$.>

c. Autho-ities -eco,ni(in, citi(enship as basis fo- classi/cation. I

The 6uestion as to 7hethe- o- not citi(enship is a le,al an) 2ali) ,-oun) fo-classi/cation has al-ea)$ been a-+ati2el$ )eci)e) in this :u-is)iction as 7ell as in2a-ious cou-ts in the Unite) States. 8n the case of S+ith Bell Co. 2s. Nati2i)a)' D=Phil. &%' 7he-e the 2ali)it$ of Act No. !& of the Philippine Le,islatu-e 7as in issue'because of a con)ition the-ein li+itin, the o7ne-ship of 2essels en,a,e) in coast7iset-a)e to co-po-ations fo-+e) b$ citi(ens of the Philippine 8slan)s o- the Unite) States'thus )en$in, the -i,ht to aliens' it 7as hel) that the Philippine Le,islatu-e )i) not2iolate the e6ual p-otection clause of the Philippine Bill of Ri,hts.

The le,islatu-e in enactin, the la7 ha) as ulti+ate pu-pose the encou-a,e+ent of Philippine shipbuil)in, an) the safet$ fo- these 8slan)s f-o+ fo-ei,n inte-lope-s. Ke

hel) that this 7as a 2ali) e9e-cise of the police po7e-' an) all p-esu+ptions a-e infa2o- of its constitutionalit$. 8n substance' 7e hel) that the li+itation of )o+estico7ne-ship of 2essels en,a,e) in coast7ise t-a)e to citi(ens of the Philippines )oesnot 2iolate the e6ual p-otection of the la7 an) )ue p-ocess o- la7 clauses of thePhilippine Bill of Ri,hts. 8n -en)e-in, sai) )ecision 7e 6uote) 7ith app-o2al theconcu--in, opinion of 3ustice 3ohnson in the case of Gibbons 2s. O,)en' " Kheat.' 8' asfollo7s4



>Licensin, acts' in fact' in le,islation' a-e uni2e-sall$ -est-ainin, acts as' fo- e9a+ple'acts licensin, ,a+in, houses' -etaile-s of spi-ituous li6uo-s' etc. The act' in thisinstance' is )istinctl$ of that cha-acte-' an) fo-+s pa-t of an e9tensi2e s$ste+' theob:ect of 7hich is to encou-a,e A+e-ican shippin,' an) place the+ on an e6ualfootin, 7ith the shippin, of othe- nations. Al+ost e2e-$ co++e-cial nation -ese-2esto its o7n sub:ects a +onopol$ of its coastin, t-a)e an) a counte-2ailin, p-i2ile,e in

fa2o- of A+e-ican shippin, is conte+plate)' in the 7hole le,islation of the Unite)States on this sub:ect. 8t is not to ,i2e the 2essel an A+e-ican cha-acte-' that thelicense is ,-ante) that e?ect has been co--ectl$ att-ibute) to the act of he-en-oll+ent.But it is to confe- on he- A+e-ican p-i2ile,es' as cont-a )istin,uishe) f-o+ fo-ei,nan) to p-ese-2e the Go2e-n+ent f-o+ f-au) b$ fo-ei,ne-s in su--eptitiousl$ int-u)in,the+sel2es into the A+e-ican co++e-cial +a-ine' as 7ell as f-au)s upon the-e2enue in the t-a)e coast7ise' that this 7hole s$ste+ is p-o:ecte).>

The -ule in ,ene-al is as follo7s4

Aliens a-e un)e- no special constitutional p-otection 7hich fo-bi)s a classi/cationothe-7ise :usti/e) si+pl$ because the li+itation of the class falls alon, the lines of nationalit$. That 7oul) be -e6ui-in, a hi,he- )e,-ee of p-otection fo- aliens as a classthan fo- si+ila- classes than fo- si+ila- classes of A+e-ican citi(ens. B-oa)l$spea5in,' the )i?e-ence in status bet7een citi(ens an) aliens constitutes a basis fo--easonable classi/cation in the e9e-cise of police po7e-. @ A+.' 3u-. D<D".

8n Co++on7ealth 2s. ana' <& N. E. &D" @Massachusetts' &"=!' a statute on thelicensin, of ha75e-s an) pe))le-s' 7hich p-o2i)e) that no one can obtain a licenseunless he is' o- has )ecla-e) his intention' to beco+e a citi(en of the Unite) States'7as hel) 2ali)' fo- the follo7in, -eason4 8t +a$ see+ 7ise to the le,islatu-e to li+itthe business of those 7ho a-e suppose) to ha2e -e,a-) fo- the 7elfa-e' ,oo) o-)e-an) happiness of the co++unit$' an) the cou-t cannot 6uestion this :u),+ent an)conclusion. 8n Bloo+/el) 2s. State' "" N. E. %=" @Ohio' &"&' a statute 7hichp-e2ente) ce-tain pe-sons' a+on, the+ aliens' f-o+ en,a,in, in the t-ac of li6uo-s'7as foun) not to be the -esult of -ace hat-e)' o- in hospitalit$' o- a )elibe-atepu-pose to )isc-i+inate' but 7as base) on the belief that an alien cannot besucientl$ ac6uainte) 7ith >ou- institutions an) ou- life as to enable hi+ toapp-eciate the -elation of this pa-ticula- business to ou- enti-e social fab-ic>' an) 7asnot' the-efo-e' in2ali). 8n Ohio e9 -el. Cla-5e 2s. 1ec5ebach' !D U. S. %"' !& L. e).&&# @&"' the U.S. Sup-e+e Cou-t ha) un)e- consi)e-ation an o-)inance of the cit$of Cincinnati p-ohibitin, the issuance of licenses @pools an) billia-) -oo+s to aliens.

8t hel) that plainl$ i--ational )isc-i+ination a,ainst aliens is p-ohibite)' but it )oes notfollo7 that alien -ace an) alle,iance +a$ not bea- in so+e instances such a -elationto a le,iti+ate ob:ect of le,islation as to be +a)e the basis of pe-+itte)classi/cation' an) that it coul) not state that the le,islation is clea-l$ 7-on, an) thatlatitu)e +ust be allo7e) fo- the le,islati2e app-aise+ent of local con)itions an) fo-the le,islati2e choice of +etho)s fo- cont-ollin, an app-ehen)e) e2il. The case

of State 2s. Ca--ol' &D N. E. &" @Ohio' &"&" is a pa-allel case to the one at ba-.8n Asa5u-a 2s. Cit$ of Seattle' &= P. %= @Kashin,ton' &"' the business of pa7nb-oo5in, 7as consi)e-e) as ha2in, ten)encies in:u-in, public inte-est' an) li+itin, itto citi(ens is 7ithin the scope of police po7e-. A si+ila- statute )en$in, aliens the-i,ht to en,a,e in auctionee-in, 7as also sustaine) in K-i,ht 2s. Ma$' L.R.A.' &"&# P.&#& @Minnesota' &"&D.

So also in Anton 2s. Han Kin5le' "! 0. %D= @O-e,on' &"D' the cou-t sai) that aliensa-e :u)iciall$ 5no7n to ha2e )i?e-ent inte-ests' 5no7le),e' attitu)e' ps$cholo,$ an)



lo$alt$' hence the p-ohibitions of issuance of licenses to the+ fo- the business of pa7nb-o5e-' pool' billia-)' ca-) -oo+' )ance hall' is not an inf-in,e+ent of constitutional -i,hts. 8n Te+pla- 2s. Michi,an State Boa-) of E9a+ine-s' "= N.K. &=#<@Michi,an' &"=' a la7 p-ohibitin, the licensin, of aliens as ba-be-s 7as hel) 2oi)'but the -eason fo- the )ecision 7as the cou-ts /n)in,s that the e9e-cise of thebusiness b$ the aliens )oes not in an$ 7a$ a?ect the +o-als' the health' o- e2en the

con2enience of the co++unit$.

8n Ta5ahashi 2s. 0ish an) Ga+e Co++ission' " L. e). &D!" @&"D!' a Califo-niastatute bannin, the issuance of co++e-cial /shin, licenses to pe-son ineli,ible tociti(enship 7as hel) 2oi)' because the la7 conJicts 7ith 0e)e-al po7e- o2e-i++i,-ation' an) because the-e is no public inte-est in the +e-e clai+ of o7ne-shipof the 7ate-s an) the /sh in the+' so the-e 7as no a)e6uate :usti/cation fo- the)isc-i+ination. 8t fu-the- a))e) that the la7 7as the out,-o7th of anta,onis+ to7a-)the pe-sons of 3apanese ancest-$. o7e2e-' t7o 3ustices )issente) on the theo-$ that/shin, -i,hts ha2e been t-eate) t-a)itionall$ as natu-al -esou-ces.8n 0-ase- 2s. McCon7a$ Ta-le$ Co.' < 0e). #! @Penns$l2ania' &<"!' a state la77hich i+pose) a ta9 on e2e-$ e+plo$e- of fo-ei,nbo-n unnatu-ali(e) +ale pe-sonso2e- & $ea-s of a,e' 7as )ecla-e) 2oi) because the cou-t foun) that the-e 7as no-eason fo- the classi/cation an) the ta9 7as an a-bit-a-$ )e)uction f-o+ the )ail$7a,e of an e+plo$ee.

). Autho-ities cont-a e9plaine). I

8t is t-ue that so+e )ecisions of the 0e)e-al cou-t an) of the State cou-ts in theUnite) States hol) that the )istinction bet7een aliens an) citi(ens is not a 2ali),-oun) fo- classi/cation. But in this )ecision the la7s )ecla-e) in2ali) 7e-e foun) tobe eithe- a-bit-a-$' un-easonable o- cap-icious' o- 7e-e the -esult o- p-o)uct of -acialanta,onis+ an) hostilit$' an) the-e 7as no 6uestion of public inte-est in2ol2e) o-pu-sue). 8n u Con, En, 2s. T-ini)a)' != L. e). &=#" @&"#' the Unite) StatesSup-e+e Cou-t )ecla-e) in2ali) a Philippine la7 +a5in, unla7ful the 5eepin, of boo5s of account in an$ lan,ua,e othe- than En,lish' Spanish o- an$ othe- local)ialect' but the +ain -easons fo- the )ecisions a-e4 @& that if Chinese 7e-e )-i2en outof business the-e 7oul) be no othe- s$ste+ of )ist-ibution' an) @ that the Chinese7oul) fall p-e$ to all 5in)s of f-au)' because the$ 7oul) be )ep-i2e) of thei- -i,ht tobe a)2ise) of thei- business an) to )i-ect its con)uct.

The -eal -eason fo- the )ecision' the-efo-e' is the cou-ts belief that no public bene/t7oul) be )e-i2e) f-o+ the ope-ations of the la7 an) on the othe- han) it 7oul))ep-i2e Chinese of so+ethin, in)ispensable fo- ca--$in, on thei- business. 8n ic5 Ko2s. op5ins' %= L. e) = @&<<# an o-)inance confe--in, po7e-s on ocials to7ithhol) consent in the ope-ation of laun)-ies both as to pe-sons an) place' 7as)ecla-e) in2ali)' but the cou-t sai) that the po7e- ,-ante) 7as a-bit-a-$' that the-e7as no -eason fo- the )isc-i+ination 7hich atten)e) the a)+inist-ation an)i+ple+entation of the la7' an) that the +oti2e the-eof 7as +e-e -acial hostilit$.8n State 2s. Mont,o+e-$' D! A. &# @Maine' &"==' a la7 p-ohibitin, aliens to en,a,e

as ha75e-s an) pe))le-s 7as )ecla-e) 2oi)' because the )isc-i+ination bo-e no-easonable an) :ust -elation to the act in -espect to 7hich the classi/cation 7asp-opose).

The case at ba- is -a)icall$ )i?e-ent' an) the facts +a5e the+ so. As 7e al-ea)$ ha2esai)' aliens )o not natu-all$ possess the s$+pathetic consi)e-ation an) -e,a-) fo- thecusto+e-s 7ith 7ho+ the$ co+e in )ail$ contact' no- the pat-iotic )esi-e to helpbolste- the nations econo+$' e9cept in so fa- as it enhances thei- p-o/t' no- thelo$alt$ an) alle,iance 7hich the national o7es to the lan). These li+itations on the



6uali/cations of the aliens ha2e been sho7n on +an$ occasions an) instances'especiall$ in ti+es of c-isis an) e+e-,enc$. Ke can )o no bette- than bo--o7 thelan,ua,e of Anton 2s. Han Kin5le' "! 0. %D=' %D' to )-i2e ho+e the -ealit$ an)si,ni/cance of the )istinction bet7een the alien an) the national' thus4

. . . . 8t +a$ be :u)iciall$ 5no7n' ho7e2e-' that alien co+in, into this count-$ a-e

7ithout the inti+ate 5no7le),e of ou- la7s' custo+s' an) usa,es that ou- o7npeople ha2e. So it is li5e7ise 5no7n that ce-tain classes of aliens a-e of )i?e-entps$cholo,$ f-o+ ou- fello7 count-$+en. 0u-the-+o-e' it is natu-al an) -easonable tosuppose that the fo-ei,n bo-n' 7hose alle,iance is /-st to thei- o7n count-$' an)7hose i)eals of ,o2e-n+ental en2i-on+ent an) cont-ol ha2e been en,en)e-e) an)fo-+e) un)e- enti-el$ )i?e-ent -e,i+es an) political s$ste+s' ha2e not the sa+einspi-ation fo- the public 7eal' no- a-e the$ as 7ell )ispose) to7a-) the Unite)States' as those 7ho b$ citi(enship' a-e a pa-t of the ,o2e-n+ent itself. 0u-the-enla-,e+ent' is unnecessa-$. 8 ha2e sai) enou,h so that ob2iousl$ it cannot bea-+e) 7ith absolute con/)ence that the Le,islatu-e 7as 7ithout plausible -easonfo- +a5in, the classi/cation' an) the-efo-e app-op-iate )isc-i+inations a,ainst aliensas it -elates to the sub:ect of le,islation. . . . .

/II. +he 'e -rocess of Law Li0itation.

a. Reasonabilit$' the test of the li+itation )ete-+ination b$ le,islatu-e )ecisi2e.I

Ke no7 co+e to )ue p-ocess as a li+itation on the e9e-cise of the police po7e-. 8thas been state) b$ the hi,hest autho-it$ in the Unite) States that4

. . . . An) the ,ua-ant$ of )ue p-ocess' as has often been hel)' )e+an)s onl$ that thela7 shall not be un-easonable' a-bit-a-$ o- cap-icious' an) that the +eans selecte)shall ha2e a -eal an) substantial -elation to the sub:ect sou,ht to be attaine). . . .

9 9 9 9 9 9 9 9 9

So fa- as the -e6ui-e+ent of )ue p-ocess is conce-ne) an) in the absence of othe-constitutional -est-iction a state is f-ee to a)opt 7hate2e- econo+ic polic$ +a$-easonabl$ be )ee+e) to p-o+ote public 7elfa-e' an) to enfo-ce that polic$ b$le,islation a)apte) to its pu-pose. The cou-ts a-e 7ithout autho-it$ eithe- to )ecla-esuch polic$' o-' 7hen it is )ecla-e) b$ the le,islatu-e' to o2e--i)e it. 8f the la7s passe)a-e seen to ha2e a -easonable -elation to a p-ope- le,islati2e pu-pose' an) a-eneithe- a-bit-a-$ no- )isc-i+inato-$' the -e6ui-e+ents of )ue p-ocess a-e satis/e)'an) :u)icial )ete-+ination to that e?ect -en)e-s a cou-t functus ocio. . . . @Nebbia

2s. Ne7 o-5' !< L. e). "D=' "#=' "#!.

Anothe- autho-it$ states the p-inciple thus4

. . . . Too +uch si,ni/cance cannot be ,i2en to the 7o-) >-easonable> in consi)e-in,the scope of the police po7e- in a constitutional sense' fo- the test use) to )ete-+inethe constitutionalit$ of the +eans e+plo$e) b$ the le,islatu-e is to in6ui-e 7hethe-the -est-iction it i+poses on -i,hts secu-e) to in)i2i)uals b$ the Bill of Ri,hts a-eun-easonable' an) not 7hethe- it i+poses an$ -est-ictions on such -i,hts. . . .



9 9 9 9 9 9 9 9 9

. . . . A statute to be 7ithin this po7e- +ust also be -easonable in its ope-ation uponthe pe-sons 7ho+ it a?ects' +ust not be fo- the anno$ance of a pa-ticula- class' an)+ust not be un)ul$ opp-essi2e. @&& A+. 3u-. Sec. %=.' &4& &=!D&=!#.

8n the case of La7ton 2s. Steele' %< L. e). %<#' %<<. it 7as also hel)4

. . . . To :ustif$ the state in thus inte-posin, its autho-it$ in behalf of the public' it+ust appea-' /-st' that the inte-ests of the public ,ene-all$' as )istin,uishe) f-o+those of a pa-ticula- class' -e6ui-e such inte-fe-ence an) secon)' that the +eans a-e-easonabl$ necessa-$ fo- the acco+plish+ent of the pu-pose' an) not un)ul$opp-essi2e upon in)i2i)uals. . . .

P-ata Un)e-ta5in, Co. 2s. State Boa-) of E+bal+in,' &=D ALR' %<"' %"#' /9es thistest of constitutionalit$4

8n )ete-+inin, 7hethe- a ,i2en act of the Le,islatu-e' passe) in the e9e-cise of thepolice po7e- to -e,ulate the ope-ation of a business' is o- is not constitutional' one of the /-st 6uestions to be consi)e-e) b$ the cou-t is 7hethe- the po7e- as e9e-cise)has a sucient foun)ation in -eason in connection 7ith the +atte- in2ol2e)' o- is ana-bit-a-$' opp-essi2e' an) cap-icious use of that po7e-' 7ithout substantial -elation tothe health' safet$' +o-als' co+fo-t' an) ,ene-al 7elfa-e of the public.

b. Petitione-s a-,u+ent consi)e-e). I

Petitione-s +ain a-,u+ent is that -etail is a co++on' o-)ina-$ occupation' one of those p-i2ile,es lon, a,o -eco,ni(e) as essential to the o-)e-l$ pu-suant of happiness b$ f-ee +en that it is a ,ainful an) honest occupation an) the-efo-ebe$on) the po7e- of the le,islatu-e to p-ohibit an) penali(e). This a-,u+entso2e-loo5s fact an) -ealit$ an) -ests on an inco--ect assu+ption an) p-e+ise' i.e.' thatin this count-$ 7he-e the occupation is en,a,e) in b$ petitione-' it has been soen,a,e) b$ hi+' b$ the alien in an honest c-e)itable an) uni+peachable +anne-'7ithout ha-+ o- in:u-$ to the citi(ens an) 7ithout ulti+ate )an,e- to thei- econo+icpeace' t-an6uilit$ an) 7elfa-e. But the Le,islatu-e has foun)' as 7e ha2e also foun)an) in)icate)' that the p-i2ile,e has been so ,-ossl$ abuse) b$ the alien' th-u theille,iti+ate use of pe-nicious )esi,ns an) p-actices' that he no7 en:o$s a+onopolistic cont-ol of the occupation an) th-eatens a )ea)l$ st-an,lehol) on thenations econo+$ en)an,e-in, the national secu-it$ in ti+es of c-isis an) e+e-,enc$.

The -eal 6uestion at issue' the-efo-e' is not that pose) b$ petitione-' 7hich o2e-loo5san) i,no-es the facts an) ci-cu+stances' but this4 8s the e9clusion in the futu-e of

aliens f-o+ the -etail t-a)e un-easonable. A-bit-a-$ cap-icious' ta5in, into accountthe ille,iti+ate an) pe-nicious fo-+ an) +anne- in 7hich the aliens ha2e he-etofo-een,a,e) the-ein; As thus co--ectl$ state) the ans7e- is clea-. The la7 in 6uestion is)ee+e) absolutel$ necessa-$ to b-in, about the )esi-e) le,islati2e ob:ecti2e' i.e.' tof-ee national econo+$ f-o+ alien cont-ol an) )o+inance. 8t is not necessa-il$un-easonable because it a?ects p-i2ate -i,hts an) p-i2ile,es @&& A+. 3u-. pp. &=<=&=<&. The test of -easonableness of a la7 is the app-op-iateness o- a)e6uac$ un)e-all ci-cu+stances of the +eans a)opte) to ca--$ out its pu-pose into e?ect @8). 3u),e) b$ this test' )ispute) le,islation' 7hich is not +e-el$ -easonable but actuall$



necessa-$' +ust be consi)e-e) not to ha2e inf-in,e) the constitutional li+itation of -easonableness.

The necessit$ of the la7 in 6uestion is e9plaine) in the e9planato-$ note thatacco+panie) the bill' 7hich late- 7as enacte) into la74

This bill p-oposes to -e,ulate the -etail business. 8ts pu-pose is to p-e2ent pe-sons7ho a-e not citi(ens of the Philippines f-o+ ha2in, a st-an,le hol) upon ou- econo+iclife. 8f the pe-sons 7ho cont-ol this 2ital a-te-$ of ou- econo+ic life a-e the ones 7hoo7e no alle,iance to this Republic' 7ho ha2e no p-ofoun) )e2otion to ou- f-eeinstitutions' an) 7ho ha2e no pe-+anent sta5e in ou- peoples 7elfa-e' 7e a-e not-eall$ the +aste-s of ou- )estin$. All aspects of ou- life' e2en ou- national secu-it$'7ill be at the +e-c$ of othe- people.

8n see5in, to acco+plish the fo-e,oin, pu-pose' 7e )o not p-opose to )ep-i2epe-sons 7ho a-e not citi(ens of the Philippines of thei- +eans of li2elihoo). Khile thisbill see5s to ta5e a7a$ f-o+ the han)s of pe-sons 7ho a-e not citi(ens of thePhilippines a po7e- that can be 7iel)e) to pa-al$(e all aspects of ou- national life an)en)an,e- ou- national secu-it$ it -espects e9istin, -i,hts.

The app-o2al of this bill is necessa-$ fo- ou- national su-2i2al.

8f political in)epen)ence is a le,iti+ate aspi-ation of a people' then econo+icin)epen)ence is nonetheless le,iti+ate. 0-ee)o+ an) libe-t$ a-e not -eal an)positi2e if the people a-e sub:ect to the econo+ic cont-ol an) )o+ination of othe-s'especiall$ if not of thei- o7n -ace o- count-$. The -e+o2al an) e-a)ication of theshac5les of fo-ei,n econo+ic cont-ol an) )o+ination' is one of the noblest +oti2esthat a national le,islatu-e +a$ pu-sue. 8t is i+possible to concei2e that le,islationthat see5s to b-in, it about can inf-in,e the constitutional li+itation of )ue p-ocess. The attain+ent of a le,iti+ate aspi-ation of a people can ne2e- be be$on) the li+itsof le,islati2e autho-it$.

c. La7 e9p-essl$ hel) b$ Constitutional Con2ention to be 7ithin the sphe-e of le,islati2e action. I

The f-a+e-s of the Constitution coul) not ha2e inten)e) to i+pose the constitutional-est-ictions of )ue p-ocess on the attain+ent of such a noble +oti2e as f-ee)o+ f-o+econo+ic cont-ol an) )o+ination' th-u the e9e-cise of the police po7e-. The fathe-sof the Constitution +ust ha2e ,i2en to the le,islatu-e full autho-it$ an) po7e- toenact le,islation that 7oul) p-o+ote the sup-e+e happiness of the people' thei-f-ee)o+ an) libe-t$. On the p-ecise issue no7 befo-e us' the$ e9p-essl$ +a)e thei-2oice clea- the$ a)opte) a -esolution e9p-essin, thei- belief that the le,islation in6uestion is 7ithin the scope of the le,islati2e po7e-. Thus the$ )ecla-e) the thei-

Resolution4

That it is the sense of the Con2ention that the public inte-est -e6ui-es thenationali(ation of -etail t-a)e but it abstain f-o+ app-o2in, the a+en)+entint-o)uce) b$ the 1ele,ate fo- Manila' M-. A-aneta' an) othe-s on this +atte-because it is con2ince) that the National Asse+bl$ is autho-i(e) to p-o+ul,ate a la77hich li+its to 0ilipino an) A+e-ican citi(ens the p-i2ile,e to en,a,e in the -etailt-a)e. @&& A-ue,o' The 0-a+in, of the Philippine Constitution' 6uote) on pa,es an) ! of the Me+o-an)u+ fo- the Petitione-.



8t 7oul) )o 7ell to -efe- to the nationalistic ten)enc$ +anifeste) in 2a-ious p-o2isionsof the Constitution. Thus in the p-ea+ble' a p-inciple ob:ecti2e is the conse-2ation of the pat-i+on$ of the nation an) as co-olla-$ the p-o2ision li+itin, to citi(ens of thePhilippines the e9ploitation' )e2elop+ent an) utili(ation of its natu-al -esou-ces. An)in Section < of A-ticle 8H' it is p-o2i)e) that >no f-anchise' ce-ti/cate' o- an$ othe-

fo-+ of autho-i(ation fo- the ope-ation of the public utilit$ shall be ,-ante) e9cept tociti(ens of the Philippines.> The nationali(ation of the -etail t-a)e is onl$ acontinuance of the nationalistic p-otecti2e polic$ lai) )o7n as a p-i+a-$ ob:ecti2e of the Constitution. Can it be sai) that a la7 i+bue) 7ith the sa+e pu-pose an) spi-itun)e-l$in, +an$ of the p-o2isions of the Constitution is un-easonable' in2ali) an)unconstitutional;

The se-iousness of the Le,islatu-es conce-n fo- the pli,ht of the nationals as+anifeste) in the app-o2al of the -a)ical +easu-es is' the-efo-e' full$ :usti/e). 8t7oul) ha2e been -ec-eant to its )uties to7a-)s the count-$ an) its people 7oul) it2ie7 the so--$ pli,ht of the nationals 7ith the co+placenc$ an) -efuse o- ne,lect toa)opt a -e+e)$ co++ensu-ate 7ith the )e+an)s of public inte-est an) nationalsu-2i2al. As the -eposito-$ of the so2e-ei,n po7e- of le,islation' the Le,islatu-e 7asin )ut$ boun) to face the p-oble+ an) +eet' th-ou,h a)e6uate +easu-es' the)an,e- an) th-eat that alien )o+ination of -etail t-a)e poses to national econo+$.

). P-o2isions of la7 not un-easonable. I

A cu-so-$ stu)$ of the p-o2isions of the la7 i++e)iatel$ -e2eals ho7 tole-ant' ho7-easonable the Le,islatu-e has been. The la7 is +a)e p-ospecti2e an) -eco,ni(es the-i,ht an) p-i2ile,e of those al-ea)$ en,a,e) in the occupation to continue the-ein)u-in, the -est of thei- li2es an) si+ila- -eco,nition of the -i,ht to continue isacco-)e) associations of aliens. The -i,ht o- p-i2ile,e is )enie) to those onl$ uponcon2iction of ce-tain o?enses. 8n the )elibe-ations of the Cou-t on this case' attention7as calle) to the fact that the p-i2ile,e shoul) not ha2e been )enie) to chil)-en an)hei-s of aliens no7 en,a,e) in the -etail t-a)e. Such p-o2ision 7oul) )efeat the la7itself' its ai+s an) pu-poses. Besi)e' the e9e-cise of le,islati2e )isc-etion is notsub:ect to :u)icial -e2ie7. 8t is 7ell settle) that the Cou-t 7ill not in6ui-e into the+oti2es of the Le,islatu-e' no- pass upon ,ene-al +atte-s of le,islati2e :u),+ent.

The Le,islatu-e is p-i+a-il$ the :u),e of the necessit$ of an enact+ent o- of an$ of itsp-o2isions' an) e2e-$ p-esu+ption is in fa2o- of its 2ali)it$' an) thou,h the Cou-t+a$ hol) 2ie7s inconsistent 7ith the 7is)o+ of the la7' it +a$ not annul thele,islation if not palpabl$ in e9cess of the le,islati2e po7e-. 0u-the-+o-e' the test of the 2ali)it$ of a la7 attac5e) as a 2iolation of )ue p-ocess' is not its -easonableness'but its un-easonableness' an) 7e /n) the p-o2isions a-e not un-easonable. These p-inciples also ans7e- 2a-ious othe- a-,u+ents -aise) a,ainst the la7' so+e of 7hich a-e4 that the la7 )oes not p-o+ote ,ene-al 7elfa-e that thousan)s of aliens7oul) be th-o7n out of e+plo$+ent that p-ices 7ill inc-ease because of theeli+ination of co+petition that the-e is no nee) fo- the le,islation that a)e6uate

-eplace+ent is p-oble+atical that the-e +a$ be ,ene-al b-ea5)o7n that the-e7oul) be -epe-cussions f-o+ fo-ei,ne-s etc. Man$ of these a-,u+ents a-e )i-ecte)a,ainst the suppose) 7is)o+ of the la7' 7hich lies solel$ 7ithin the le,islati2ep-e-o,ati2e the$ )o not i+po-t in2ali)it$.

/III. Alleed defect in the title of the law

A subo-)inate ,-oun) o- -eason fo- the alle,e) in2ali)it$ of the la7 is the clai+ thatthe title the-eof is +islea)in, o- )ecepti2e' as it conceals the -eal pu-pose of the bill



7hich is to nationali(e the -etail business an) p-ohibit aliens f-o+ en,a,in, the-ein. The constitutional p-o2ision' 7hich is clai+e) to be 2iolate) in Section & @& of A-ticle H8' 7hich -ea)s4

No bill' 7hich +a$ be enacte) in the la7' shall e+b-ace +o-e than one sub:ect' 7hichshall be e9p-esse) in the title of the bill.

Khat the abo2e p-o2ision p-ohibits is )uplicit$' that is' if its title co+pletel$ fails toapp-aise the le,islato-s o- the public of the natu-e' scope an) conse6uences of thela7 o- its ope-ation @8 Suthe-lan)' Statuto-$ Const-uction' Sec. &!=!' p. "!. Acu-so-$ consi)e-ation of the title an) the p-o2isions of the bill fails to sho7 thep-esence of )uplicit$. 8t is t-ue that the te-+ >-e,ulate> )oes not an) +a$ not -ea)il$an) at /-st ,lance con2e$ the i)ea of >nationali(ation> an) >p-ohibition>' 7hich te-+se9p-ess the t7o +ain pu-poses an) ob:ecti2es of the la7. But >-e,ulate> is a b-oa)e-te-+ than eithe- p-ohibition o- nationali(ation. Both of these ha2e al7a$s beeninclu)e) 7ithin the te-+ -e,ulation.

Un)e- the title of an act to >-e,ulate>' the sale of into9icatin, li6uo-s' the Le,islatu-e+a$ p-ohibit the sale of into9icatin, li6uo-s. @S7eet 2s. Cit$ of Kabash' D& 8n).' !6uote) in pa,e D& of Ans7e-.

Kithin the +eanin, of the Constitution -e6ui-in, that the sub:ect of e2e-$ act of theLe,islatu-e shall be state) in the tale' the title to -e,ulate the sale of into9icatin,li6uo-s' etc.> sucientl$ e9p-esses the sub:ect of an act p-ohibitin, the sale of suchli6uo-s to +ino-s an) to pe-sons in the habit of ,ettin, into9icate) such +atte-sbein, p-ope-l$ inclu)e) 7ithin the sub:ect of -e,ulatin, the sale. @Killia+s 2s. State'D< 8n). %=' %=<' 6uote) in p. D of Ans7e-.

The 7o-) >-e,ulate> is of b-oa) i+po-t' an) necessa-il$ i+plies so+e )e,-ee of -est-aint an) p-ohibition of acts usuall$ )one in connection 7ith the thin, to be-e,ulate). Khile 7o-) -e,ulate )oes not o-)ina-il$ con2e$ +eanin, of p-ohibit' the-eis no absolute -eason 7h$ it shoul) not ha2e such +eanin, 7hen use) in )ele,atin,police po7e- in connection 7ith a thin, the best o- onl$ ecacious -e,ulation of 7hich in2ol2es supp-ession. @State 2s. Mo-ton' & So. !&<' &< La. <<!' 6uote) in p.D of Ans7e-.

The ,ene-al -ule is fo- the use of ,ene-al te-+s in the title of a bill it has also beensai) that the title nee) not be an in)e9 to the enti-e contents of the la7 @8 Suthe-lan)'Statuto-$ Const-uction' See. D<=%' p. %D#. The abo2e -ule 7as follo7e) the title of the Act in 6uestion a)opte) the +o-e ,ene-al te-+ >-e,ulate> instea) of >nationali(e>o- >p-ohibit>. 0u-the-+o-e' the la7 also contains othe- -ules fo- the -e,ulation of the-etail t-a)e 7hich +a$ not be inclu)e) in the te-+s >nationali(ation> o- >p-ohibition>so 7e-e the title chan,e) f-o+ >-e,ulate> to >nationali(e> o- >p-ohibit>' the-e 7oul)ha2e been +an$ p-o2isions not fallin, 7ithin the scope of the title 7hich 7oul) ha2e+a)e the Act in2ali). The use of the te-+ >-e,ulate>' the-efo-e' is in acco-) 7ith thep-inciple ,o2e-nin, the )-aftin, of statutes' un)e- 7hich a si+ple o- ,ene-al te-+

shoul) be a)opte) in the title' 7hich 7oul) inclu)e all othe- p-o2isions foun) in thebo)$ of the Act.

One pu-pose of the constitutional )i-ecti2e that the sub:ect of a bill shoul) bee+b-ace) in its title is to app-ise the le,islato-s of the pu-poses' the natu-e an)scope of its p-o2isions' an) p-e2ent the enact+ent into la7 of +atte-s' 7hich ha2e-ecei2e) the notice' action an) stu)$ of the le,islato-s o- of the public. 8n the case atba- it cannot be clai+e) that the le,islato-s ha2e been app-aise) of the natu-e of thela7' especiall$ the nationali(ation an) the p-ohibition p-o2isions. The le,islato-s too5



acti2e inte-est in the )iscussion of the la7' an) a ,-eat +an$ of the pe-sons a?ecte)b$ the p-ohibitions in the la7 con)ucte) a ca+pai,n a,ainst its app-o2al. 8t cannotbe clai+e)' the-efo-e' that the -easons fo- )ecla-in, the la7 in2ali) e2e- e9iste). Theob:ection +ust the-efo-e' be o2e--ule).

I2. Alleed violation of international treaties and obliations

Anothe- subo-)inate a-,u+ent a,ainst the 2ali)it$ of the la7 is the suppose)2iolation the-eb$ of the Cha-te- of the Unite) Nations an) of the 1ecla-ation of theu+an Ri,hts a)opte) b$ the Unite) Nations Gene-al Asse+bl$. Ke /n) no +e-it inthe Nations Cha-te- i+poses no st-ict o- le,al obli,ations -e,a-)in, the -i,hts an)f-ee)o+ of thei- sub:ects @ans elsen' The La7 of the Unite) Nations' &"#& e). pp."%' an) the 1ecla-ation of u+an Ri,hts contains nothin, +o-e than a +e-e-eco++en)ation o- a co++on stan)a-) of achie2e+ent fo- all peoples an) allnations @8). p. %". That such is the i+po-t of the Unite) Nations Cha-te- ai) of the1ecla-ation of u+an Ri,hts can be infe--e) the fact that +e+be-s of the Unite)Nations O-,ani(ations' such as No-7a$ an) 1en+a-5' p-ohibit fo-ei,ne-s f-o+en,a,in, in -etail t-a)e' an) in +ost nations of the 7o-l) la7s a,ainst fo-ei,ne-sen,a,e) in )o+estic t-a)e a-e a)opte).

The T-eat$ of A+it$ bet7een the Republic of the Philippines an) the Republic of Chinaof Ap-il &<' &"D! is also clai+e) to be 2iolate) b$ the la7 in 6uestion. All that thet-eat$ ,ua-antees is e6ualit$ of t-eat+ent to the Chinese nationals >upon the sa+ete-+s as the nationals of an$ othe- count-$.> But the nationals of China a-e not)isc-i+inatin, a,ainst because nationals of all othe- count-ies' e9cept those of theUnite) States' 7ho a-e ,-ante) special -i,hts b$ the Constitution' a-e all p-ohibite)f-o+ en,a,in, in the -etail t-a)e. But e2en supposin, that the la7 inf-in,es upon thesai) t-eat$' the t-eat$ is al7a$s sub:ect to 6uali/cation o- a+en)+ent b$ asubse6uent la7 @U. S. 2s. Tho+pson' #<' 0e). #!' =' an) the sa+e +a$ ne2e-cu-tail o- -est-ict the scope of the police po7e- of the State @Plaston 2s. Penns$l2ania'#< L. e). #%".

2. Conclsion

Resu+in, 7hat 7e ha2e set fo-th abo2e 7e hol) that the )ispute) la7 7as enacte)to -e+e)$ a -eal actual th-eat an) )an,e- to national econo+$ pose) b$ alien)o+inance an) cont-ol of the -etail business an) f-ee citi(ens an) count-$ f-o+)o+inance an) cont-ol that the enact+ent clea-l$ falls 7ithin the scope of the policepo7e- of the State' th-u 7hich an) b$ 7hich it p-otects its o7n pe-sonalit$ an)insu-es its secu-it$ an) futu-e that the la7 )oes not 2iolate the e6ual p-otectionclause of the Constitution because sucient ,-oun)s e9ist fo- the )istinction bet7eenalien an) citi(en in the e9e-cise of the occupation -e,ulate)' no- the )ue p-ocess of la7 clause' because the la7 is p-ospecti2e in ope-ation an) -eco,ni(es the p-i2ile,eof aliens al-ea)$ en,a,e) in the occupation an) -easonabl$ p-otects thei- p-i2ile,e

that the 7is)o+ an) ecac$ of the la7 to ca--$ out its ob:ecti2es appea- to us to be

plainl$ e2i)ent I as a +atte- of fact it see+s not onl$ app-op-iate but actuall$necessa-$ I an) that in an$ case such +atte- falls 7ithin the p-e-o,ati2e of theLe,islatu-e' 7ith 7hose po7e- an) )isc-etion the 3u)icial )epa-t+ent of theGo2e-n+ent +a$ not inte-fe-e that the p-o2isions of the la7 a-e clea-l$ e+b-ace) inthe title' an) this su?e-s f-o+ no )uplicit$ an) has not +isle) the le,islato-s o- these,+ent of the population a?ecte) an) that it cannot be sai) to be 2oi) fo-suppose) conJict 7ith t-eat$ obli,ations because no t-eat$ has actuall$ been ente-e)into on the sub:ect an) the police po7e- +a$ not be cu-taile) o- su--en)e-e) b$ an$t-eat$ o- an$ othe- con2entional a,-ee+ent.



So+e +e+be-s of the Cou-t a-e of the opinion that the -a)ical e?ects of the la7coul) ha2e been +a)e less ha-sh in its i+pact on the aliens. Thus it is state) that the+o-e ti+e shoul) ha2e been ,i2en in the la7 fo- the li6ui)ation of e9istin,businesses 7hen the ti+e co+es fo- the+ to close. Ou- le,al )ut$' ho7e2e-' is+e-el$ to )ete-+ine if the la7 falls 7ithin the scope of le,islati2e autho-it$ an) )oes

not t-anscen) the li+itations of )ue p-ocess an) e6ual p-otection ,ua-antee) in theConstitution. Re+e)ies a,ainst the ha-shness of the la7 shoul) be a))-esse) to theLe,islatu-e the$ a-e be$on) ou- po7e- an) :u-is)iction.

The petition is he-eb$ )enie)' 7ith costs a,ainst petitione-.

Pa-as' C.3.' Ben,(on' Re$es' A.' Bautista An,elo' Concepcion' Re$es' 3.B.L.' En)enciaan) 0eli9' 33.' concu-.

Sepa-ate Opinions

PA18LLA' 3.' concu--in, an) )issentin,4

8 a,-ee to the p-oposition' p-inciple o- -ule that cou-ts +a$ not in6ui-e into the7is)o+ of an the Act passe) b$ the Con,-ess an) )ul$ app-o2e) b$ the P-esi)ent of the Republic. But the -ule )oes not p-eclu)e cou-ts f-o+ in6ui-in, an) )ete-+inin,7hethe- the Act o?en)s a,ainst a p-o2ision o- p-o2isions of the Constitution. 8 a+satis/e) that the Act assaile) as 2iolati2e of the )ue p-ocess of la7 an) the e6ualp-otection of the la7s clauses of the Constitution )oes not inf-in,e upon the+'insofa- as it a?ects associations' pa-tne-ship o- co-po-ations' the capital of 7hich isnot 7holl$ o7ne) b$ the citi(ens of the Philippines' an) aliens' 7ho a-e not an) ha2enot been en,a,e) in the -etail business. 8 a+' ho7e2e-' unable to pe-sua)e +$self that it )oes not 2iolate sai) clauses insofa- as the Act applies to associations an)pa-tne-ships -efe--e) to in the Act an) to aliens' 7ho a-e an) ha2e he-etofo-e beenen,a,e) in sai) business. Khen the$ )i) en,a,e in the -etail business the-e 7as nop-ohibition on o- a,ainst the+ to en,a,e in it. The$ assu+e) an) belie2e) in ,oo)

faith the$ 7e-e entitle) to en,a,e) in the business.

The Act allo7s aliens to continue in business until thei- )eath o- 2olunta-$ -eti-e+entf-o+ the business o- fo-feitu-e of thei- license an) co-po-ations' associations o-pa-tne-ship' the capital of 7hich is not 7holl$ o7ne) b$ the citi(ens of the Philippinesto continue in the business fo- a pe-io) of ten $ea-s f-o+ the )ate of the app-o2al of the Act @&" 3une &"#D o- until the e9pi-$ of te-+ of the e9istence of the associationo- pa-tne-ship o- co-po-ation' 7hiche2e- e2ent co+es /-st. The p-ohibition onco-po-ations' the capital of 7hich is not 7holl$ o7ne) b$ citi(ens of the Philippines'to en,a,e in the -etail business fo- a pe-io) of +o-e than ten $ea-s f-o+ the )ate of the app-o2al of the Act o- be$on) the te-+ of thei- co-po-ate e9istence' 7hiche2e-e2ent co+es /-st' is 2ali) an) la7ful' because the continuance of the e9istence of such co-po-ations is sub:ect to 7hate2e- the Con,-ess +a$ i+pose -easonabl$ uponthe+ b$ subse6uent le,islation.& But the p-ohibition to en,a,e in the -etail businessb$ associations an) pa-tne-ships' the capital of 7hich is not 7holl$ o7ne) b$ citi(enof the Philippines' afte- ten $ea-s f-o+ the )ate of the app-o2al of the Act' e2enbefo-e the en) of the te-+ of thei- e9istence as a,-ee) upon b$ the associates an)pa-tne-s' an) b$ alien hei-s to 7ho+ the -etail business is t-ans+itte) b$ the )eathof an alien en,a,e) in the business' o- b$ his e9ecuto- o- a)+inist-ato-' a+ounts to a)ep-i2ation of thei- p-ope-t$ 7ithout )ue p-ocess of la7.

To +$ +in)' the ten$ea- pe-io) f-o+ the )ate of the app-o2al of the Act o- until thee9pi-ation of the te-+ of the e9istence of the association an) pa-tne-ship' 7hiche2e-



e2ent co+es /-st' an) the si9+onth pe-io) ,-ante) to alien hei-s of a )ecease)alien' his e9ecuto- o- a)+inist-ato-' to li6ui)ate the business' )o not cu-e the )efectof the la7' because the e?ect of the p-ohibition is to co+pel the+ to sell o- )isposeof thei- business. The p-ice obtainable at such fo-ce) sale of the business 7oul) beina)e6uate to -ei+bu-se an) co+pensate the associates o- pa-tne-s of theassociations o- pa-tne-ship' an) the alien hei-s of a )ecease) alien' en,a,e) in the

-etail business fo- the capital in2este) in it. The stoc5 of +e-chan)ise bou,ht an) sol) at -etail )oes not alone constitute thebusiness. The ,oo)7ill that the association' pa-tne-ship an) the alien ha) built up)u-in, a lon, pe-io) of e?o-t' patience an) pe-se2e-ance fo-+s pa-t of suchbusiness. The constitutional p-o2isions that no pe-son shall be )ep-i2e) of hisp-ope-t$ 7ithout )ue p-ocess of la7 an) that no pe-son shall be )enie) the e6ualp-otection of the la7s% 7oul) ha2e no +eanin, as applie) to associations o-pa-tne-ship an) alien hei-s of an alien en,a,e) in the -etail business if the$ 7e-e tobe co+pelle) to sell o- )ispose of thei- business 7ithin ten $ea-s f-o+ the )ate of theapp-o2al of the Act an) befo-e the en) of the te-+ of the e9istence of theassociations an) pa-tne-ship as a,-ee) upon b$ the associations an) pa-tne-s an)7ithin si9 +onths afte- the )eath of thei- p-e)ecesso-ininte-est.

The autho-s of the Constitution 7e-e 2i,ilant' ca-eful an) (ealous in the safe,ua-) of the o7ne-ship of p-i2ate a,-icultu-al lan)s 7hich to,ethe- 7ith the lan)s of the public)o+ain constitute the p-iceless pat-i+on$ an) +ainsta$ of the nation $et' the$ )i)not )ee+ it 7ise an) p-u)ent to )ep-i2e aliens an) thei- hei-s of such lan)s.D

0o- these -easons' 8 a+ of the opinion that section & of the Act' insofa- as it co+pelsassociations an) pa-tne-ship -efe--e) to the-ein to 7in) up thei- -etail business 7ithinten $ea-s f-o+ the )ate of the app-o2al of the Act e2en befo-e the e9pi-$ of the te-+of thei- e9istence as a,-ee) upon b$ the associates an) pa-tne-s an) section % of theAct' insofa- as it co+pels the aliens en,a,e) in the -etail business in his lifeti+e hise9ecuto- o- a)+inist-ato-' to li6ui)ate the business' a-e in2ali)' fo- the$ 2iolate the)ue p-ocess of la7 an) the e6ual p-otection of the la7s clauses of the Constitution.

0ootnotes

& Section !' Act No. &D#"..

Section & @&' A-ticle 888' of the Constitution.

% 8bi).

D Section #' A-ticle 888' of the Constitution.

42 ichong vs hernandez

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