MAYOR PABLO P.

MAGTAJAS & THE CITY OF CAGAYAN DE ORO, petitioners,

vs.
PRYCE PROPERTIES CORPORATION, INC. & PHILIPPINE AMUSEMENT AND GAMING
CORPO-RATION, respondents.
Facts:
1. PAGCOR is a corporation created directly by P.D. 1869 to help centralize and
regulate all games of chance, including casinos on land and sea within the
territorial jurisdiction of the Philippines.
2. In 1992, PAGCOR decided to expand its operations to Cagayan de Oro City
(CDO). To this end, it leased a portion of a building belonging to Pryce
Properties Corporation, Inc., one of the herein private respondents, renovated
and equipped the same, and prepared to inaugurate its casino there during
the Christmas season.
3. On December 7, 1992, the Sangguniang Panlungsod (SP) of CDO enacted
Ordinance No. 3353 which prohibits issuance of business permit and
cancelling business permit to any establishment for the using and allowing to
be used it premises or portion thereof for the operation of Casino.
Penalties: 1st offense - Suspension of the business permit for 60 days and
P1000/day fine
2nd offense - Suspension of the business permit for 6 months and
P3000/day fine
3rd and subsequent - Permanent revocation of the business permit and
imprisonment of1yr
4. On January 4, 1993, SP adopted a sterner Ordinance No. 3375-93 which
prohibits the operation of Casino. The City Council prohibited the the
operation of gambling CASINO in the City of CDO.
Penalties: Administrative fine of P5,000.00 shall be imposed against the
proprietor, partnership or corporation undertaking the operation, conduct,
maintenance of gambling CASINO in the City and closure thereof;
Imprisonment of not less than 6 months nor more than 1 year or a fine in the
amount of P5,000.00 or both at the discretion of the court against the
manager, supervisor, and/or any person responsible in the establishment,
conduct and maintenance of gambling CASINO.
5. Pryce assailed the ordinances before the CA, where it was joined by PAGCOR
as intervenor and supplemental petitioner.
6. On March 31, 1993, the CA declared the ordinances invalid and issued the
writ prayed for to prohibit their enforcement. Reconsideration of this decision
was denied.
7. CDO and its mayor are now before us in this petition for review under Rule 45
of the Rules of Court. They aver that the respondent Court of Appeals erred in
holding that:
a. Under existing laws, the SP of the City of CDO does not have the power
and authority to prohibit the establishment and operation of a PAGCOR
gambling casino within the Citys territorial limits.
 b. The phrase gambling and other prohibited games of chance found in Sec.
458, par. (a), sub-par. (1)-(v) of R.A. 7160 could only mean illegal
gambling.
c. The questioned Ordinances in effect annul P.D. 1869 and are therefore
invalid on that point.
d. The questioned Ordinances are discriminatory to casino and partial to
cockfighting and are therefore invalid on that point.
e. The questioned Ordinances are not reasonable, not consonant with the
general powers and purposes of the instrumentality concerned and
inconsistent with the laws or policy of the State. It had no option but to
follow the ruling in the case of Basco, et al. v. PAGCOR, G.R. No. 91649,
May 14, 1991, 197 SCRA 53 in disposing of the issues presented in this
present case.
- In Basco v. PAGCOR, this Court sustained the constitutionality of the
decree and even cited the benefits of the entity to the national economy as
the third highest revenue-earner in the government, next only to the BIR and
the Bureau of Customs.
Cagayan de Oro City, like other local political subdivisions, is empowered to enact
ordinances for the purpose indicated in the Local Government Code. It is expressly
vested with the police power under what is known as the General Welfare Clause
now embodied in Section 16. In addition, Section 458 of the said Code specifically
declares that: The SP, as the legislative body of the city, shall enact ordinances,
approve resolutions and appropriate funds for the general welfare of the city and its
inhabitants pursuant to Section 16 of this Code and in the proper exercise of the
corporate powers of the city as provided for under Section 22 of this Code, and
shall: Enact ordinances intended to prevent, suppress and impose appropriate
penalties for vagrancy, mendicancy, prostitution . . . gambling and other
prohibited games of chance. . This section also authorizes the local government
units to regulate properties and businesses within their territorial limits in the
interest of the general welfare.
Issue: WON Ordinance No. 3355 and Ordinance No. 3375-93 are valid exercise of
police power. NO
Held: The tests of a valid ordinance are well established. To be valid, an ordinance
must conform to the following substantive requirements: 1) It must not contravene
the constitution or any statute; 2) It must not be unfair or oppressive; 3) It must not
be partial or discriminatory; 4) It must not prohibit but may regulate trade; 5) It
must be general and consistent with public policy; 6) It must not be unreasonable.
1. Petitioners argument: SP may prohibit the operation of casinos because they
involve games of chance, which are detrimental to the people. Gambling is
not allowed by general law and even by the Constitution itself. The legislative
power conferred upon local government units may be exercised over all kinds
of gambling and not only over illegal gambling.
SC: Under Sec. 458 of the Local Government Code, LGUs are authorized to
prevent or suppress, among others, gambling and other prohibited games of
chance. Obviously, this provision excludes games of chance which are
 not prohibited but are in fact permitted by law. The language of the
section is clear and unmistakable. Under the rule of noscitur a sociis, a word
or phrase should be interpreted in relation to, or given the same meaning of,
words with which it is associated. Accordingly, we conclude that since the
word gambling is associated with and other prohibited games of chance, the
word should be read as referring to only illegal gambling which, like the other
prohibited games of chance, must be prevented or suppressed.
2. Petitioners argument: The adoption of the Local Government Code had the
effect of modifying the charter of the PAGCOR. The Code is not only a later
enactment than P.D. 1869 and so is deemed to prevail in case of
inconsistencies between them. In their view, the decree has been, not really
repealed by the Code, but merely modified pro tanto in the sense that
PAGCOR cannot now operate a casino over the objection of the local
government unit concerned.
SC: The apparent flaw in the ordinances in question is that they contravene
P.D. 1869 and the public policy embodied therein insofar as they prevent
PAGCOR from exercising the power conferred on it to operate a casino in
CDO.
a. If we follow the view of the petitioners, PAGCOR cannot continue to exist
except only as a toothless tiger or a white elephant and will no longer be
able to exercise its powers as a prime source of government revenue
through the operation of casinos. Moreover, P.D. 1869 is not one of the
specific laws that were mentioned as repealed.
b. There is no sufficient indication of an implied repeal of P.D. 1869. On the
contrary, as the private respondent points out, PAGCOR is mentioned as
the source of funding in two later enactments of Congress, to wit, R.A.
7309, creating a Board of Claims under the Department of Justice for the
benefit of victims of unjust punishment or detention or of violent crimes,
and R.A. 7648, providing for measures for the solution of the power crisis.
PAGCOR revenues are tapped by these two statutes. This would show that
the PAGCOR charter has not been repealed by the Local Government Code
but has in fact been improved as it were to make the entity more
responsive to the fiscal problems of the government.
3. It is a canon of legal hermeneutics that instead of pitting one statute against
another in an inevitably destructive confrontation, courts must exert every
effort to reconcile them, remembering that both laws deserve a becoming
respect as the handiwork of a coordinate branch of the government. Under
the Local Government Code, LGUs may prevent and suppress all kinds of
gambling within their territories except only those allowed by statutes like
P.D. 1869.

The rationale of the requirement that the ordinances should not contravene a
statute is obvious. Municipal governments are only agents of the national
government. Local councils exercise only delegated legislative powers conferred on
them by Congress as the national lawmaking body. The delegate cannot be superior
to the principal or exercise powers higher than those of the latter. It is a heresy to
suggest that the local government units can undo the acts of Congress, from which
they have derived their power in the first place, and negate by mere ordinance the
mandate of the statute. True, there are certain notable innovations in the
Constitution, like the direct conferment on the local government units of the power
to tax, which cannot now be withdrawn by mere statute. By and large, however, the
national legislature is still the principal of the local government units, which cannot
defy its will or modify or violate it.
The Court understands and admires the concern of the petitioners for the welfare of
their constituents and their apprehensions that the welfare of Cagayan de Oro City
will be endangered by the opening of the casino. We share the view that the hope of
large or easy gain, obtained without special effort, turns the head of the workman
and that habitual gambling is a cause of laziness and ruin. Nevertheless, we must
recognize the power of the legislature to decide, in its own wisdom, to legalize
certain forms of gambling, as was done in P.D. 1869 and impliedly affirmed in the
Local Government Code. That decision can be revoked by this Court only if it
contravenes the Constitution as the touchstone of all official acts. We do not find
such contravention here. We hold that the power of PAGCOR to centralize and
regulate all games of chance, including casinos on land and sea within the territorial
jurisdiction of the Philippines, remains unimpaired. P.D. 1869 has not been modified
by the Local Government Code, which empowers the local government units to
prevent or suppress only those forms of gambling prohibited by law. Casino
gambling is authorized by P.D. 1869. This decree has the status of a statute that
cannot be amended or nullified by a mere ordinance.