8epubllc of Lhe hlllpplnes

SUkLML CCUk1
Manlla
Ln 8AnC
G.k. No. L-6S366 November 9, 1983
ICSL 8.L. kLLS, |n beha|f of the AN1I-8ASLS CCALI1ICN (A8C), peLlLloner,
vs.
kAMCN 8AGA1SING, as Mayor of the C|ty of Man||a, respondenL.

ILkNANDC, !"#"$%&'"()*+,-.
1hls CourL, ln Lhls case of flrsL lmpresslon, aL leasL as Lo some aspecLs, ls called upon Lo
dellneaLe Lhe boundarles of Lhe proLecLed area of Lhe cognaLe rlghLs Lo free speech and
peaceable assembly,
1
agalnsL an alleged lnLruslon by respondenL Mayor 8amon
8agaLslng. eLlLloner, reLlred !usLlce !8 L. 8eyes, on behalf of Lhe AnLl-8ases CoallLlon
soughL a permlL from Lhe ClLy of Manlla Lo hold a peaceful march and rally on CcLober
26, 1983 from 2:00 Lo 3:00 ln Lhe afLernoon, sLarLlng from Lhe LuneLa, a publlc park, Lo
Lhe gaLes of Lhe unlLed SLaLes Lmbassy, hardly Lwo blocks away. Cnce Lhere, and ln an
open space of publlc properLy, a shorL program would be held.
2
uurlng Lhe course of Lhe
oral argumenL,
3
lL was sLaLed LhaL afLer Lhe dellvery of Lwo brlef speeches, a peLlLlon
based on Lhe resoluLlon adopLed on Lhe lasL day by Lhe lnLernaLlonal Conference for
Ceneral ulsbarmamenL, World eace and Lhe 8emoval of All lorelgn MlllLary 8ases held
ln Manlla, would be presenLed Lo a represenLaLlve of Lhe Lmbassy or any of lLs
personnel who may be Lhere so LhaL lL may be dellvered Lo Lhe unlLed SLaLes
Ambassador. 1he march would be aLLended by Lhe local and forelgn parLlclpanLs of such
conference. 1here was llkewlse an assurance ln Lhe peLlLlon LhaL ln Lhe exerclse of Lhe
consLlLuLlonal rlghLs Lo free speech and assembly, all Lhe necessary sLeps would be
Laken by lL "Lo ensure a peaceful march and rally."
4

1he flllng of Lhls sulL for mandamus wlLh alLernaLlve prayer for wrlL of prellmlnary
mandaLory ln[uncLlon on CcLober 20, 1983 was due Lo Lhe facL LhaL as of LhaL daLe,
peLlLloner had noL been lnformed of any acLlon Laken on hls requesL on behalf of Lhe
organlzaLlon Lo hold a rally. Cn CcLober 23, 1983, Lhe answer of respondenL Mayor was
flled on hls behalf by AsslsLanL SollclLor Ceneral Lduardo C. MonLenegro.
S
lL Lurned ouL
LhaL on CcLober 19, such permlL was denled. eLlLloner was unaware of such a facL as
Lhe denlal was senL by ordlnary mall. 1he reason for refuslng a permlL was due Lo pollce
lnLelllgence reporLs whlch sLrongly mlllLaLe agalnsL Lhe advlsablllLy of lssulng such
permlL aL Lhls Llme and aL Lhe place applled for."
6
1o be more speclflc, reference was
made Lo perslsLenL lnLelllgence reporLs afflrm[lng] Lhe plans of subverslve/crlmlnal
elemenLs Lo lnfllLraLe and/or dlsrupL any assembly or congregaLlons where a large
number of people ls expecLed Lo aLLend."
7
8espondenL Mayor suggesLed, however, ln
accordance wlLh Lhe recommendaLlon of Lhe pollce auLhorlLles, LhaL "a permlL may be
lssued for Lhe rally lf lL ls Lo be held aL Lhe 8lzal Collseum or any oLher enclosed area
where Lhe safeLy of Lhe parLlclpanLs Lhemselves and Lhe general publlc may be
ensured."
8

1he oral argumenL was heard on CcLober 23, 1983, Lhe very same day Lhe answer was
flled. 1he CourL Lhen dellberaLed on Lhe maLLer. 1haL same afLernoon, a mlnuLe
resoluLlon was lssued by Lhe CourL granLlng Lhe mandaLory ln[uncLlon prayed for on Lhe
ground LhaL Lhere was no showlng of Lhe exlsLence of a clear and presenL danger of a
subsLanLlve evll LhaL could [usLlfy Lhe denlal of a permlL. Cn Lhls polnL, Lhe CourL was
unanlmous, buL Lhere was a dlssenL by !usLlce Aqulno on Lhe ground LhaL Lhe holdlng of
a rally ln fronL of Lhe uS Lmbassy would be vlolaLlve of Crdlnance no. 7293 of Lhe ClLy of
Manlla. 1he lasL senLence of such mlnuLe resoluLlon reads: "1hls resoluLlon ls wlLhouL
pre[udlce Lo a more exLended oplnlon."
9
Pence Lhls deLalled exposlLlon of Lhe CourL's
sLand on Lhe maLLer.
1. lL ls Lhus clear LhaL Lhe CourL ls called upon Lo proLecL Lhe exerclse of Lhe cognaLe
rlghLs Lo free speech and peaceful assembly, arlslng from Lhe denlal of a permlL. 1he
ConsLlLuLlon ls qulLe expllclL: "no law shall be passed abrldglng Lhe freedom of speech,
or of Lhe press, or Lhe rlghL of Lhe people peaceably Lo assemble and peLlLlon Lhe
CovernmenL for redress of grlevances."
10
lree speech, llke free press, may be ldenLlfled
wlLh Lhe llberLy Lo dlscuss publlcly and LruLhfully any maLLer of publlc concern wlLhouL
censorshlp or punlshmenL.
11
1here ls Lo be Lhen no prevlous resLralnL on Lhe
communlcaLlon of vlews or subsequenL llablllLy wheLher ln llbel sulLs,
12
prosecuLlon for
sedlLlon,
13
or acLlon for damages,
14
or conLempL proceedlngs
1S
unless Lhere be a clear
and presenL danger of a subsLanLlve evll LhaL [Lhe SLaLe] has a rlghL Lo
prevenL."
16
lreedom of assembly connoLes Lhe rlghL people Lo meeL peaceably for
consulLaLlon and dlscusslon of maLLers Cf publlc concern.
17
lL ls enLlLled Lo be accorded
Lhe uLmosL deference and respecL. lL ls hoL Lo be llmlLed, much less denled, excepL on a
showlng, as 's Lhe case wlLh freedom of expresslon, of a clear and presenL danger of a
subsLanLlve evll LhaL Lhe sLaLe has a rlghL Lo prevenL.
18
Lven prlor Lo Lhe 1933
ConsLlLuLlon, !usLlce Malcolm had occaslon Lo sLress LhaL lL ls a necessary consequence
of our republlcan lnsLlLuLlons and complemenLs Lhe rlghL of free speech.
19
1o
paraphrase oplnlon of !usLlce 8uLledge speaklng for Lhe ma[orlLy of Lhe !"#$%&'(
*+,$#"# -.+$/ 01."'2 34 -.55%(2,
20
lL was noL by accldenL or colncldence LhaL Lhe rlghL
Lo freedom of speech and of Lhe press were Loupled ln a slngle guaranLee wlLh Lhe and
Lo peLlLlon Lhe rlghLs of Lhe people peaceably Lo assemble and Lo peLlLlon Lhe
governmenL for redress of grlevances. All Lhese rlghLs, whlle noL ldenLlcal, are
lnseparable. Lhe every case, Lherefo re Lhere ls a llmlLaLlon placed on Lhe exerclse of Lhls
rlghL, Lhe [udlclary ls called upon Lo examlne Lhe effecLs of Lhe challenged governmenLal
acLuaLlon. 1he sole [usLlflcaLlon for a llmlLaLlon on Lhe exerclse of Lhls rlghL, so
fundamenLal Lo Lhe malnLenance of democraLlc lnsLlLuLlons, ls Lhe danger, of a characLer
boLh grave and lmmlnenL, of a serlous evll Lo publlc safeLy, publlc morals, publlc healLh,
or any oLher leglLlmaLe publlc lnLeresL.
21

2. nowhere ls Lhe raLlonale LhaL underlles Lhe freedom of expresslon and peaceable
assembly beLLer expressed Lhan ln Lhls excerpL from an oplnlon of !usLlce lrankfurLer:
"lL musL never be forgoLLen, however, LhaL Lhe 8lll of 8lghLs was Lhe chlld of Lhe
LnllghLenmenL. 8ack of Lhe guaranLy of free speech lay falLh ln Lhe power of an appeal
Lo reason by all Lhe peaceful means for galnlng access Lo Lhe mlnd. lL was ln order Lo
averL force and exploslons due Lo resLrlcLlons upon raLlonal modes of communlcaLlon
LhaL Lhe guaranLy of free speech was glven a generous scope. 8uL uLLerance ln a conLexL
of vlolence can lose lLs slgnlflcance as an appeal Lo reason and become parL of an
lnsLrumenL of force. Such uLLerance was noL meanL Lo be shelLered by Lhe
ConsLlLuLlon."
22
WhaL was rlghLfully sLressed ls Lhe abandonmenL of reason, Lhe
uLLerance, wheLher verbal or prlnLed, belng ln a conLexL of vlolence. lL musL always be
remembered LhaL Lhls rlghL llkewlse provldes for a safeLy valve, allowlng parLles Lhe
opporLunlLy Lo glve venL Lo Lhelr-vlews, even lf conLrary Lo Lhe prevalllng cllmaLe of
oplnlon. lor lf Lhe peaceful means of communlcaLlon cannoL be avalled of, resorL Lo
non-peaceful means may be Lhe only alLernaLlve. nor ls Lhls Lhe sole reason for Lhe
expresslon of dlssenL. lL means more Lhan [usL Lhe rlghL Lo be heard of Lhe person who
feels aggrleved or who ls dlssaLlsfled wlLh Lhlngs as Lhey are. lLs value may lle ln Lhe facL
LhaL Lhere may be someLhlng worLh hearlng from Lhe dlssenLer. 1haL ls Lo ensure a Lrue
fermenL of ldeas. 1here are, of course, well-deflned llmlLs. WhaL ls guaranLeed ls
peaceable assembly. Cne may noL advocaLe dlsorder ln Lhe name of proLesL, much less
preach rebelllon under Lhe cloak of dlssenL. 1he ConsLlLuLlon frowns on dlsorder or
LumulL aLLendlng a rally or assembly. resorL Lo force ls ruled ouL and ouLbreaks of
vlolence Lo be avolded. 1he uLmosL calm Lhough ls noL requlred. As polnLed ouL ln an
early hlllpplne case, penned ln 1907 Lo be preclse, 6(%/#7 */'/#2 34 !,+$'7.:
23
"lL ls
raLher Lo be expecLed LhaL more or less dlsorder wlll mark Lhe publlc assembly of Lhe
people Lo proLesL agalnsL grlevances wheLher real or lmaglnary, because on such
occaslons feellng ls always wroughL Lo a hlgh plLch of exclLemenL, and Lhe greaLer Lhe
grlevance and Lhe more lnLense Lhe feellng, Lhe less perfecL, as a rule, wlll be Lhe
dlsclpllnary conLrol of Lhe leaders over Lhelr lrresponslble followers."
24
lL bears
repeaLlng LhaL for Lhe consLlLuLlonal rlghL Lo be lnvoked, rloLous conducL, ln[ury Lo
properLy, and acLs of vandallsm musL be avolded, 1o glve free reln Lo one's desLrucLlve
urges ls Lo call for condemnaLlon. lL ls Lo make a mockery of Lhe hlgh esLaLe occupled by
lnLellecLual llberLy ln our scheme of values.
3. 1here can be no legal ob[ecLlon, absenL Lhe exlsLence of a clear and presenL danger of
a subsLanLlve evll, on Lhe cholce of LuneLa as Lhe place where Lhe peace rally would
sLarL. 1he hlllpplnes ls commlLLed Lo Lhe vlew expressed ln Lhe plurallLy oplnlon, of
1939 vlnLage, of !usLlce 8oberLs ln 8'9+# 34 -:;<
2S
Whenever Lhe LlLle of sLreeLs and
parks may resL, Lhey have lmmemorlally been held ln LrusL for Lhe use of Lhe publlc and,
Llme ouL of mlnd, have been used for purposes of assembly, communlcaLlng LhoughLs
beLween clLlzens, and dlscusslng publlc quesLlons. Such use of Lhe sLreeLs and publlc
places has, from anclenL Llmes, been a parL of Lhe prlvlleges, lmmunlLles, rlghLs, and
llberLles of clLlzens. 1he prlvllege of a clLlzen of Lhe unlLed SLaLes Lo use Lhe sLreeLs and
parks for communlcaLlon of vlews on naLlonal quesLlons may be regulaLed ln Lhe
lnLeresL of all, lL ls noL absoluLe, buL relaLlve, and musL be exerclsed ln subordlnaLlon Lo
Lhe general comforL and convenlence, and ln consonance wlLh peace and good order,
buL lL musL noL, ln Lhe gulse of regulaLlon, be abrldged or denled.
26
1he above excerpL
was quoLed wlLh approval ln rlmlclas v. lugoso.
27
rlmlclas made expllclL whaL was
lmpllclL ln=+(%&%,'5%/> .? -'3%/# 34 @.A'2,"
28
a 1913 declslon, where Lhls CourL
caLegorlcally afflrmed LhaL plazas or parks and sLreeLs are ouLslde Lhe commerce of man
and Lhus nulllfled a conLracL LhaL leased laza Soledad of plalnLlff-munlclpallLy.
8eference was made Lo such plaza "belng a promenade for publlc use,"
29
whlch
cerLalnly ls noL Lhe only purpose LhaL lL could serve. 1o repeaL, Lhere can be no valld
reason why a permlL should noL be granLed for Lhe or oposed march and rally sLarLlng
from a publlc dark LhaL ls Lhe LuneLa.
4. nelLher can Lhere be any valld ob[ecLlon Lo Lhe use of Lhe sLreeLs, Lo Lhe gaLes of Lhe
uS Lmbassy, hardly Lwo block-away aL Lhe 8oxas 8oulevard. B$%"%&%'2 34 C+9.2. has
resolved any lurklng doubL on Lhe maLLer. ln holdlng LhaL Lhe Lhen Mayor lugoso of Lhe
ClLy of Manlla should granL a permlL for a publlc meeLlng aL laza Mlranda ln Culapo,
Lhls CourL caLegorlcally declared: "Cur concluslon flnds supporL ln Lhe declslon ln Lhe
case of D%55%2 -.E 324 */'/# .? F#G 8'",21%$#, 312 u.S., 369. ln LhaL case, Lhe sLaLuLe of
new Pampshlre . L. chap. 143, secLlon 2, provldlng LhaL 'no parade or processlon upon
any ground abuLLlng Lhereon, shall 'ue permlLLed unless a speclal llcense Lherefor shall
flrsL be explalned from Lhe selecLmen of Lhe Lown or from llcenslng commlLLee,' was
consLrued by Lhe Supreme CourL of new Pampshlre as noL conferrlng upon Lhe llcenslng
board unfeLLered dlscreLlon Lo refuse Lo granL Lhe llcense, and held valld. And Lhe
Supreme CourL of Lhe unlLed SLaLes, ln lLs declslon (1941) penned by Chlef !usLlce
Pughes afflrmlng Lhe [udgmenL of Lhe SLaLe Supreme CourL, held LhaL 'a sLaLuLe
requlrlng persons uslng Lhe publlc sLreeLs for a parade or processlon Lo procure a speclal
llcense Lherefor from Lhe local auLhorlLles ls noL an unconsLlLuLlonal abrldgmenL of Lhe
rlghLs of assembly or of freedom of speech and press, where, as Lhe sLaLuLe ls consLrued
by Lhe sLaLe courLs, Lhe llcenslng auLhorlLles are sLrlcLly llmlLed, ln Lhe lssuance of
llcenses, Lo a conslderaLlon of Lhe Llme, place, and manner of Lhe parade or processlon,
wlLh a vlew Lo conservlng Lhe publlc convenlence and of affordlng an opporLunlLy Lo
provlde proper pollclng, and are noL lnvesLed wlLh arblLrary dlscreLlon Lo lssue or refuse
llcense, ... "
30
nor should Lhe polnL made by Chlef !usLlce Pughes ln a subsequenL
porLlon of Lhe oplnlon be lgnored, "Clvll llberLles, as guaranLeed by Lhe ConsLlLuLlon,
lmply Lhe exlsLence of an organlzed socleLy malnLalnlng publlc order wlLhouL whlch
llberLy lLself would be losL ln Lhe excesses of unresLrlcLed abuses. 1he auLhorlLy of a
munlclpallLy Lo lmpose regulaLlons ln order Lo assure Lhe safeLy and convenlence of Lhe
people ln Lhe use of publlc hlghways has never been regarded as lnconslsLenL wlLh clvll
llberLles buL raLher as one of Lhe means of safeguardlng Lhe good order upon whlch Lhey
ulLlmaLely depend. 1he conLrol of Lravel on Lhe sLreeLs of clLles ls Lhe mosL famlllar
lllusLraLlon of Lhls recognlLlon of soclal need. Where a resLrlcLlon of Lhe use of hlghways
ln LhaL relaLlon ls deslgned Lo promoLe Lhe publlc convenlence ln Lhe lnLeresL of all, lL
cannoL be dlsregarded by Lhe aLLempLed exerclse of some clvll rlghL whlch ln oLher
clrcumsLances would be enLlLled Lo proLecLlon."
31

3. 1here ls a novel aspecL Lo Lhls case, lf Lhe rally were conflned Lo LuneLa, no quesLlon,
as noLed, would have arlsen. So, Loo, lf Lhe march would end aL anoLher park. As
prevlously menLloned Lhough, Lhere would be a shorL program upon reachlng Lhe publlc
space beLween Lhe Lwo gaLes of Lhe unlLed SLaLes Lmbassy aL 8oxas 8oulevard. 1haL
would be followed by Lhe handlng over of a peLlLlon based on Lhe resoluLlon adopLed aL
Lhe closlng sesslon of Lhe AnLl-8ases CoallLlon. 1he hlllpplnes ls a slgnaLory of Lhe
vlenna ConvenLlon on ulplomaLlc 8elaLlons adopLed ln 1961. lL was concurred ln by Lhe
Lhen hlllpplne SenaLe on May 3, 1963 and Lhe lnsLrumenL of raLlflcaLlon was slgned by
Lhe resldenL on CcLober 11, 1963, and was LhereafLer deposlLed wlLh Lhe SecreLary
Ceneral of Lhe unlLed naLlons on november 13. As of LhaL daLe Lhen, lL was blndlng on
Lhe hlllpplnes. 1he second paragraph of Lhe ArLlcle 22 reads: "2. 1he recelvlng SLaLe ls
under a speclal duLy Lo Lake approprlaLe sLeps Lo proLecL Lhe premlses of Lhe mlsslon
agalnsL any lnLruslon or damage and Lo prevenL any dlsLurbance of Lhe peace of Lhe
mlsslon or lmpalrmenL of lLs dlgnlLy. "
32
1he ConsLlLuLlon "adopLs Lhe generally
accepLed prlnclples of lnLernaLlonal law as parL of Lhe law of Lhe land. ..."
33
1o Lhe
exLenL LhaL Lhe vlenna ConvenLlon ls a resLaLemenL of Lhe generally accepLed prlnclples
of lnLernaLlonal law, lL should be a parL of Lhe law of Lhe land.
34
1haL belng Lhe case, lf
Lhere were a clear and presenL danger of any lnLruslon or damage, or dlsLurbance of Lhe
peace of Lhe mlsslon, or lmpalrmenL of lLs dlgnlLy, Lhere would be a [usLlflcaLlon for Lhe
denlal of Lhe permlL lnsofar as Lhe Lermlnal polnL would be Lhe Lmbassy. Moreover,
respondenL Mayor relled on Crdlnance no. 7293 of Lhe ClLy of Manlla prohlblLlng Lhe
holdlng or sLaglng of rallles or demonsLraLlons wlLhln a radlus of flve hundred (300) feeL
from any forelgn mlsslon or chancery and for oLher purposes. unless Lhe ordlnance ls
nulllfled, or declared+5/$' 3%$#2H lLs lnvocaLlon as a defense ls undersLandable buL noL
declslve, ln vlew of Lhe prlmacy accorded Lhe consLlLuLlonal rlghLs of free speech and
peaceable assembly. Lven lf shown Lhen Lo be appllcable, LhaL quesLlon Lhe confronLs
Lhls CourL.
6. 1here ls merlL Lo Lhe observaLlon LhaL excepL as Lo Lhe novel aspecLs of a llLlgaLlon,
Lhe [udgmenL musL be conflned wlLhln Lhe llmlLs of prevlous declslons. 1he law declared
on pasL occaslons ls, on Lhe whole, a safe gulde, So lL has been here. Pence, as noLed, on
Lhe afLernoon of Lhe hearlng, CcLober 23, 1983, Lhls CourL lssued Lhe mlnuLe resoluLlon
granLlng Lhe mandaLory ln[uncLlon allowlng Lhe proposed march and rally scheduled for
Lhe nexL day. 1haL concluslon was lnevlLable lll Lhe absence of a clear and presenL
danger of a subsLanLlve, evll Lo a leglLlmaLe publlc lnLeresL. 1here was no [usLlflcaLlon
Lhen Lo deny Lhe exerclse of Lhe consLlLuLlonal rlghLs of Lree speech and peaceable
assembly. 1hese rlghLs are assured by our ConsLlLuLlon and Lhe unlversal ueclaraLlon of
Puman 8lghLs.
3S
1he parLlclpanLs Lo such assembly, composed prlmarlly of Lhose ln
aLLendance aL Lhe lnLernaLlonal Conference for Ceneral ulsbarmamenL, World eace
and Lhe 8emoval of All lorelgn MlllLary 8ases would sLarL from Lhe LuneLa. proceedlng
Lhrough 8oxas 8oulevard Lo Lhe gaLes of Lhe unlLed SLaLes Lmbassy locaLed aL Lhe same
sLreeL. 1o repeaL, lL ls seLLled law LhaL as Lo publlc places, especlally so as Lo parks and
sLreeLs, Lhere ls freedom of access. nor ls Lhelr use dependenL on who ls Lhe appllcanL
for Lhe permlL, wheLher an lndlvldual or a group. lf lL were, Lhen Lhe freedom of access
becomes dlscrlmlnaLory access, glvlng rlse Lo an equal proLecLlon quesLlon. 1he prlnclple
under Amerlcan docLrlnes was glven uLLerance by Chlef !usLlce Pughes ln Lhese words:
"1he quesLlon, lf Lhe rlghLs of free speech and peaceable assembly are Lo be preserved,
ls noL as Lo Lhe ausplces under whlch Lhe meeLlng ls held buL as Lo lLs purpose, noL as Lo
1he relaLlons of Lhe speakers, buL wheLher Lhelr uLLerances Lranscend Lhe bounds of Lhe
freedom of speech whlch Lhe ConsLlLuLlon proLecLs."
36
1here could be danger Lo publlc
peace and safeLy lf such a gaLherlng were marked by Lurbulence. 1haL would deprlve lL
of lLs peaceful characLer. Lven Lhen, only Lhe gullLy parLles should be held accounLable.
lL ls Lrue LhaL Lhe llcenslng offlclal, here respondenL Mayor, ls noL devold of dlscreLlon ln
deLermlnlng wheLher or noL a permlL would be granLed. lL ls noL, however, unfeLLered
dlscreLlon. Whlle prudence requlres LhaL Lhere be a reallsLlc appralsal noL of whaL may
posslbly occur buL of whaL may ,$.I'I5> .&&+$, glven all Lhe relevanL clrcumsLances, sLlll
Lhe assumpLlon - especlally so where Lhe assembly ls scheduled for a speclflc publlc -
place ls LhaL Lhe permlL musL be for Lhe assembly belng held Lhere. 1he exerclse of such
a rlghL, ln Lhe language of !usLlce 8oberLs, speaklng for Lhe Amerlcan Supreme CourL, ls
noL Lo be "abrldged on Lhe plea LhaL lL may be exerclsed ln some oLher place."
37

7. ln falrness Lo respondenL Mayor, he acLed on Lhe bellef LhaL F'3'$$. 34
J%55#9'2
38
and B'9K'K'%2' (9 ='(99'9'G'(9 B%5%,%(. LB=B4M 34 N'9'/2%(9H
39
called for
appllcaLlon. Whlle Lhe Ceneral rule ls LhaL a permlL should recognlze Lhe rlghL of Lhe
appllcanLs Lo hold Lhelr assembly aL a publlc place of Lhelr cholce, anoLher place may be
deslgnaLed by Lhe llcenslng auLhorlLy lf lL be shown LhaL Lhere ls a clear and presenL
danger of a subsLanLlve evll lf no such change were made. ln Lhe navarro and Lhe
agkakalsa declslons, Lhls CourL was persuaded LhaL Lhe clear and presenL danger LesL
was saLlsfled. 1he presenL slLuaLlon ls qulLe dlfferenL. Pence Lhe declslon reached by Lhe
CourL. 1he mere asserLlon LhaL subverslves may lnfllLraLe Lhe ranks of Lhe
demonsLraLors does noL sufflce. noL LhaL lL should be overlooked. 1here was ln Lhls
case, however, Lhe assurance of Ceneral narclso Cabrera, SuperlnLendenL, WesLern
ollce ulsLrlcL, MeLropollLan ollce lorce, LhaL Lhe pollce force ls ln a poslLlon Lo cope
wlLh such emergency should lL arlse 1haL ls Lo comply wlLh lLs duLy Lo exLend proLecLlon
Lo Lhe parLlclpanLs of such peaceable assembly. Also from hlm came Lhe commendable
admlsslon LhaL Lhere were Lhe leasL flve prevlous demonsLraLlons aL Lhe 8ayvlew hoLel
Area and laza lerguson ln fronL of Lhe unlLed SLaLes Lmbassy where no unLoward
evenL occurred. lL was made clear by peLlLloner, Lhrough counsel, LhaL no acL offenslve
Lo Lhe dlgnlLy of Lhe unlLed SLaLes Mlsslon ln Lhe hlllpplnes would Lake place and LhaL,
as menLloned aL Lhe ouLseL of Lhls oplnlon, "all Lhe necessary sLeps would be Laken by lL
'Lo ensure a peaceful march and rally.' "
40
AsslsLanL SollclLor Ceneral MonLenegro
expressed Lhe vlew LhaL Lhe presence of pollcemen may ln lLself be a provocaLlon. lL ls a
sufflclenL answer LhaL Lhey should sLay aL a dlscreeL dlsLance, buL ever ready and alerL Lo
cope wlLh any conLlngency. 1here ls no need Lo repeaL whaL was polnLed ouL by Chlef
!usLlce Pughes ln Cox LhaL preclsely, lL ls Lhe duLy of Lhe clLy auLhorlLles Lo provlde Lhe
proper pollce proLecLlon Lo Lhose exerclslng Lhelr rlghL Lo peaceable assembly and
freedom of expresslon.
8. 8y way of a summary 1he appllcanLs for a permlL Lo hold an assembly should lnform
Lhe llcenslng auLhorlLy of Lhe daLe, Lhe publlc place where and Lhe Llme when lL wlll Lake
place. lf lL were a prlvaLe place, only Lhe consenL of Lhe owner or Lhe one enLlLled Lo lLs
legal possesslon ls requlred. Such appllcaLlon should be flled well ahead ln Llme Lo
enable Lhe publlc offlclal concerned Lo appralse wheLher Lhere may be valld ob[ecLlons
Lo Lhe granL of Lhe permlL or Lo lLs granL buL aL anoLher publlc place. lL ls an
lndlspensable condlLlon Lo such refusal or modlflcaLlon LhaL Lhe clear and presenL
danger LesL be Lhe sLandard for Lhe declslon reached. lf he ls of Lhe vlew LhaL Lhere ls
such an lmmlnenL and grave danger of a subsLanLlve evll, Lhe appllcanLs musL be heard
on Lhe maLLer. 1hereafLer, hls declslon, wheLher favorable or adverse, musL be
LransmlLLed Lo Lhem aL Lhe earllesL opporLunlLy. 1hus lf so mlnded, Lhen, can have
recourse Lo Lhe proper [udlclal auLhorlLy. lree speech and peaceable assembly, along
wlLh Lhe oLher lnLellecLual freedoms, are hlghly ranked ln our scheme of consLlLuLlonal
values. lL cannoL be Loo sLrongly sLressed LhaL on Lhe [udlclary, - even more so Lhan on
Lhe oLher deparLmenLs - resLs Lhe grave and dellcaLe responslblllLy of assurlng respecL
for and deference Lo such preferred rlghLs. no verbal formula, no sancLlfylng phrase can,
of course, dlspense wlLh whaL has been so fellclLlously Lermed by !usLlce Polmes "as Lhe
soverelgn prerogaLlve of [udgmenL." noneLheless, Lhe presumpLlon musL be Lo lncllne
Lhe welghL of Lhe scales of [usLlce on Lhe slde of such rlghLs, en[oylng as Lhey do
precedence and prlmacy. Clearly Lhen, Lo Lhe exLenL LhaL Lhere may be lnconslsLencles
beLween Lhls resoluLlon and LhaL of F'3'$$. 34 J%55#9'2, LhaL case ls ,$. /'(/.modlfled.
So lL was made clear ln Lhe orlglnal resoluLlon of CcLober 23, 1983.
9. 8espondenL Mayor posed Lhe lssue of Lhe appllcablllLy of Crdlnance no. 7293 of Lhe
ClLy of Manlla prohlblLlng Lhe holdlng or sLaglng of rallles or demonsLraLlons wlLhln a
radlus of flve hundred (300) feeL from any forelgn mlsslon or chancery and for oLher
purposes. lL ls Lo be admlLLed LhaL lL flnds supporL ln Lhe prevlously quoLed ArLlcle 22 of
Lhe vlenna ConvenLlon on ulplomaLlc 8elaLlons. 1here was no showlng, however, LhaL
Lhe dlsLance beLween Lhe chancery and Lhe embassy gaLe ls less Lhan 300 feeL. Lven lf lL
could be shown LhaL such a condlLlon ls saLlsfled. lL does noL follow LhaL respondenL
Mayor could legally acL Lhe way he dld. 1he valldlLy of hls denlal of Lhe permlL soughL
could sLlll be challenged. lL could be argued LhaL a case of unconsLlLuLlonal appllcaLlon of
such ordlnance Lo Lhe exerclse of Lhe rlghL of peaceable assembly presenLs lLself. As ln
Lhls case Lhere was no proof LhaL Lhe dlsLance ls less Lhan 300 feeL, Lhe need Lo pass on
LhaL lssue was obvlaLed, Should lL come, Lhen Lhe quallflcaLlon and observaLlon of
!usLlces Makaslar and lana cerLalnly cannoL be summarlly brushed aslde. 1he hlgh
esLaLe accorded Lhe rlghLs Lo free speech and peaceable assembly demands noLhlng
less.
10. Crdlnarlly, Lhe remedy ln cases of Lhls characLer ls Lo seL aslde Lhe denlal or Lhe
modlflcaLlon of Lhe permlL soughL and order Lhe respondenL offlclal, Lo granL lL.
noneLheless, as Lhere was urgency ln Lhls case, Lhe proposed march and rally belng
scheduled for Lhe nexL day afLer Lhe hearlng, Lhls CourL. ln Lhe exerclse of lLs conceded
auLhorlLy, granLed Lhe mandaLory ln[uncLlon ln Lhe resoluLlon of CcLober 23, 1983. lL
may be noLed LhaL Lhe peaceful characLer of Lhe peace march and rally on CcLober 26
was noL marred by any unLoward lncldenL. So lL has been ln oLher assemblles held
elsewhere. lL ls qulLe reassurlng such LhaL boLh on Lhe parL of Lhe naLlonal governmenL
and Lhe clLlzens, reason and moderaLlon have prevalled. 1haL ls as lL should be.
WnLkLICkL, the mandatory |n[unct|on prayed for |s granted. No costs.