CONSTI II noting important

7/25/2019 CONSTI II noting important

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Republic of the PhilippinesSUPREME COURT

Manila

EN BANC

G.R. No. 173034 October 9, 2007

PHARMACEUTICA AN! HEATH CARE ASSOCIATION O" THE PHIIPPINES,petitioner,vs.HEATH SECRETAR# "RANCISCO T. !U$UE III% HEATH UN!ER SECRETARIES !R.ETHE#N P. NIETO, !R. MARGARITA M. GAON, ATT#. AE&AN!ER A. PA!IA, ' !R. (A!E". !E MUN!O% )*+ ASSISTANT SECRETARIES !R. MARIO C. IAER!E, !R. !AI! (.O-A!A, AN! !R. NEMESIO T. GAO,respondents.

! E C I S I O N

AUSTRIA/MARTINE-, J.

The Court and all parties involved are in agreement that the best nourishment for an infant ismother's milk. There is nothing greater than for a mother to nurture her beloved child straight fromher bosom. The ideal is, of course, for each and every Filipino child to enoy the une!ualed benefitsof breastmilk. "ut ho# should this end be attained$

"efore the Court is a petition for certiorariunder Rule %& of the Rules of Court, seeking to nullifydministrative (rder ).(.* +o. --%--/ entitled, Revised Implementing Rules andRegulations of Executive Order No. 51, Otherwise nown as !he "#il$ %ode," RelevantInternational &greements, 'enali(ing )iolations !hereof, and for Other 'urposes)R0RR*.Petitioner posits that the R0RR is not valid as it contains provisions that are not constitutional and go

beyond the la# it is supposed to implement.

+amed as respondents are the 1ealth 2ecretary, 3ndersecretaries, and ssistant 2ecretaries of the4epartment of 1ealth )4(1*. For purposes of herein petition, the 4(1 is deemed impleaded as acorespondent since respondents issued the !uestioned R0RR in their capacity as officials of saide5ecutive agency./

65ecutive (rder +o. &/ )Milk Code* #as issued by President Cora7on !uino on (ctober 8, /98%by virtue of the legislative po#ers granted to the president under the Freedom Constitution. (ne ofthe preambular clauses of the Milk Code states that the la# seeks to give effect to rticle //of the0nternational Code of Marketing of "reastmilk 2ubstitutes )0CM"2*, a code adopted by the :orld1ealth ssembly ):1* in /98/. From /98 to --%, the :1 adopted several Resolutions to the

effect that breastfeeding should be supported, promoted and protected, hence, it should be ensuredthat nutrition and health claims are not permitted for breastmilk substitutes.

0n /99-, the Philippines ratified the 0nternational Convention on the Rights of the Child. rticle ; ofsaid instrument provides that 2tate Parties should take appropriate measures to diminish infant andchild mortality, and ensure that all segments of society, specially parents and children, are informedof the advantages of breastfeeding.

(n May /&, --%, the 4(1 issued herein assailed R0RR #hich #as to take effect on


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1o#ever, on

(n ugust /&, --%, the Court issued a Resolution granting a TR( enoining respondents fromimplementing the !uestioned R0RR.

fter the Comment and Reply had been filed, the Court set the case for oral arguments on , ;=, and & of the R0RR violate the due process clauseand are in restraint of tradeA and

.; :hether 2ection /> of the R0RR on Total 6ffect provides sufficient standards.

BBBBBBBBBBBBB

/ )/* 3nited +ations Convention on the Rights of the ChildA )* the :1( and 3nicef --?lobal 2trategy on 0nfant and Doung Child FeedingA and )>* various :orld 1ealth ssembly):1* Resolutions.

The parties filed their respective memoranda.

The petition is partly imbued #ith merit.

On the issue of petitioner's standing

:ith regard to the issue of #hether petitioner may prosecute this case as the real partyininterest,the Court adopts the vie# enunciated in 65ecutive 2ecretary v. Court of ppeals,;to #it@

The modern vie# is that an association has standing to complain of inuries to its members.This vie# fuses the legal identity of an association #ith that of its members. A* )oc)to*) t)*+* to 56e t 5or t 8orer +e:te t 6)c o5 +rect *teret 5 t ;e;ber
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)re )55ecte+ b< te )cto*. A* or)*=)to* ) t)*+* to )ert te co*cer* o5 tco*tte*t.

5 5 5 5

5 5 5 :e note that, under its rticles of 0ncorporation, the respondent #as organi7ed 5 5 5 to

act as the representative of any individual, company, entity or association on matters relatedto the manpo#er recruitment industry, and to perform other acts and activities necessary toaccomplish the purposes embodied therein. The re:o*+e*t , t, te )::ro:r)te:)rt< to )ert te rt o5 t ;e;ber, bec)e t )*+ t ;e;ber )re * e>er+)6 ;e;ber ee to ;)e ;ore e55ect>e te e:reo* o5ter >oce )*+ te re+re o5 ter re>)*ce. &)6mphasis supplied*

#hich #as reasserted in Purok Bagong Silang Association, Inc. v. Yuipco,%#here the Court ruled thatan association has the legal personality to represent its members because the results of the case#ill affect their vital interests.=

1erein petitioner's mended rticles of 0ncorporation contains a similar provision ust like in65ecutive 2ecretary, that the association is formed to represent directly or through approvedrepresentatives the pharmaceutical and health care industry before the Philippine ?overnment andany of its agencies, the medical professions and the general public.8Thus, as an organi7ation,petitioner definitely has an interest in fulfilling its avo#ed purpose of representing members #ho arepart of the pharmaceutical and health care industry. Petitioner is duly authori7ed9to take theappropriate course of action to bring to the attention of government agencies and the courts anygrievance suffered by its members #hich are directly affected by the R0RR. Petitioner, #hich ismandated by its mended rticles of 0ncorporation to represent the entire industry, #ould be remissin its duties if it fails to act on governmental action that #ould affect any of its industry members, nomatter ho# fe# or numerous they are. 1ence, petitioner, #hose legal identity is deemed fused #ithits members, should be considered as a real partyininterest #hich stands to be benefited or inuredby any udgment in the present action.

On the constitutionality of the provisions of the I

"rt, the Court #ill determine if pertinent international instruments adverted to by respondents arepart of the la# of the land.

Petitioner assails the R0RR for allegedly going beyond the provisions of the Milk Code, therebyamending and e5panding the coverage of said la#. The defense of the 4(1 is that the R0RRimplements not only the Milk Code but also various international instruments/-regarding infant andyoung child nutrition. 0t is respondents' position that said international instruments are deemed partof the la# of the land and therefore the 4(1 may implement them through the R0RR.

The Court notes that the follo#ing international instruments invoked by respondents, namely@ )/* The3nited +ations Convention on the Rights of the ChildA )* The 0nternational Covenant on 6conomic,2ocial and Cultural RightsA and )>* the Convention on the 6limination of ll Forms of 4iscrimination

gainst :omen, only provide in general terms that steps must be taken by 2tate Parties to diminishinfant and child mortality and inform society of the advantages of breastfeeding, ensure the healthand #ellbeing of families, and ensure that #omen are provided #ith services and nutrition inconnection #ith pregnancy and lactation. 2aid instruments do not contain specific provisionsregarding the use or marketing of breastmilk substitutes.
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The international instruments that do have specific provisions regarding breastmilk substitutes arethe 0CM"2 and various :1 Resolutions.

3nder the /98= Constitution, international la# can become part of the sphere of domestic la# eitherbytr)*5or;)to*or *cor:or)to*.//The transformation method re!uires that an international la#be transformed into a domestic la# through a constitutional mechanism such as local legislation.

The incorporation method applies #hen, by mere constitutional declaration, international la# isdeemed to have the force of domestic la#./

Treaties become part of the la# of the land through tr)*5or;)to*pursuant to rticle E00, 2ection/ of the Constitution #hich provides that nGo treaty or international agreement shall be valid andeffective unless concurred in by at least t#othirds of all the members of the 2enate. Thus, treatiesor conventional international la# must go through a process prescribed by the Constitution for it tobe transformed into municipal la# that can be applied to domestic conflicts./>

The 0CM"2 and :1 Resolutions are not treaties as they have not been concurred in by at leastt#othirds of all members of the 2enate as re!uired under 2ection /, rticle E00 of the /98=Constitution.

1o#ever, the 0CM"2 #hich #as adopted by the :1 in /98/ had been transformed into domesticla# through local legislation, the Milk Code. Conse!uently, it is the Milk Code that has the force andeffect of la# in this urisdiction and not the 0CM"2per se.

The Milk Code is almost a verbatim reproduction of the 0CM"2, but it is #ell to emphasi7e at thispoint that the Code did not adopt the provision in the ICMBS )bo6te6< :robt* )+>ert*orother forms of promotion to the general public of products #ithin the scope of the 0CM"2.0nstead, te M6 Co+e e:re6< :ro>+e t)t )+>ert*, :ro;oto*, or oter ;)ret*;)ter)6 ;)< be )66o8e+ 5 c ;)ter)6 )re +6< )tor=e+ )*+ )::ro>e+ b< te I*ter/Ae*c< Co;;ttee IAC.

(n the other hand, 2ection , rticle 00 of the /98= Constitution, to #it@

26CT0(+ . The Philippines renounces #ar as an instrument of national policy, adopts thegenerall* accepted principles of international law as part of the law of the landandadheres to the policy of peace, e!uality, ustice, freedom, cooperation and amity #ith allnations. )6mphasis supplied*

embodies the *cor:or)to*method./;

0n !i"ares v. anada,/&the Court held thus@

?Generally accepted principles of international la#, by virtue of the incorporation clause of

the Constitution, form part of the la#s of the land even if they do not derive from treatyobligations. The classical formulation in international la# sees those customary rulesaccepted as binding result from the combination ofG t#o elements@ the established,#idespread, and consistent practice on the part of 2tatesA and a psychological elementkno#n as the opinion uris >e *ecet)te )opinion as to la# or necessity*. 0mplicit in thelatter element is a belief that the practice in !uestion is rendered obligatory by the e5istenceof a rule of la# re!uiring it./%)6mphasis supplied*
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?enerally accepted principles of international la# refers to norms of general or customaryinternational la# #hich are binding on all states,/=i.e., renunciation of #ar as an instrument ofnational policy, the principle of sovereign immunity,/8a person's right to life, liberty and dueprocess,/9andpacta sunt servanda,-among others. The concept of generally accepted principlesof la# has also been depicted in this #ise@

2ome legal scholars and udges look upon certain general principles of la# as a primary source ofinternational la# because te< )>e te Dc)r)cter o5 r)to*)6eD )*+ )re D>)6+ tro )66*+ o5 ;)* ocete.D)


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The :orld 1ealth (rgani7ation ):1(* is one of the international speciali7ed agencies allied #ith the3nited +ations )3+* by virtue of rticle &=,;in relation to rticle %>&of the 3+ Charter. 3nder the/9;% :1( Constitution, it is the :1 #hich determines the policies of the :1(,%and has thepo#er to adopt regulations concerning advertising and labeling of biological, pharmaceutical andsimilar products moving in international commerce,=and to make recommendations to members#ith respect to any matter #ithin the competence of the (rgani7ation.8The legal effect of its

regulations, as opposed to recommendations, is !uite different.

Regulations, along #ith conventions and agreements, duly adopted by the :1 b*+ ;e;bert)te thus@

rticle /9. The 1ealth ssembly shall have authority to adopt conventions or agreements#ith respect to any matter #ithin the competence of the (rgani7ation. t#othirds vote of the1ealth ssembly shall be re!uired for the adoption of such co*>e*to* or )ree;e*t,#hich )66 co;e *to 5orce 5or e)c Me;ber 8e* )cce:te+ b< t * )ccor+)*ce 8tt co*ttto*)6 :rocee.

rticle -. E)c Me;ber *+ert)e t)t t 866, #ithin eighteen months after the adoption

by the 1ealth ssembly of a convention or agreement, t)e )cto* re6)t>e to te)cce:t)*ce o5 c co*>e*to* or )ree;e*t. 6ach Member shall notify the 4irector?eneral of the action taken, and if it does not accept such convention or agreement #ithinthe time limit, it #ill furnish a statement of the reasons for nonacceptance. 0n case ofacceptance, each Member agrees to make an annual report to the 4irector?eneral inaccordance #ith Chapter H0E.

rticle /. The 1ealth ssembly shall have authority to adopt regulations concerning@ )a*sanitary and !uarantine re!uirements and other procedures designed to prevent theinternational spread of diseaseA )b* nomenclatures #ith respect to diseases, causes of deathand public health practicesA )c* standards #ith respect to diagnostic procedures forinternational useA )d* standards #ith respect to the safety, purity and potency of biological,pharmaceutical and similar products moving in international commerceA )e* advertising and

labeling of biological, pharmaceutical and similar products moving in international commerce.

rticle . egulations adopted pursuant to Article #$ shall co%e into force for all!e%&ers after due notice has &een given of their adoption &y the ealth Asse%&ly e(ceptfor such !e%&ers as %ay notify the )irector*+eneral of re"ection or reservations ithin the

period stated in the notice. )6mphasis supplied*

(n the other hand, *+er Artc6e 23, reco;;e*+)to* o5 te FHA +o *ot co;e *to 5orce 5or;e;ber,in the same #ay that conventions or agreements under rticle /9 and re6)to* *+erArtc6e 21come into force. rticle > of the :1( Constitution reads@

rticle >. The 1ealth ssembly shall have authorit* to ma$e recommendationsto

Members #ith respect to any matter #ithin the competence of the (rgani7ation. )6mphasissupplied*

The absence of a provision in rticle > of any mechanism by #hich the recommendation #ouldcome into force for member states is conspicuous.

The former 2enior Iegal (fficer of :1(, 2ami 2hubber, stated that :1 recommendations aregenerally not binding, but they carry moral and political #eight, as they constitute the udgment on ahealth issue of the collective membership of the highest international body in the field of
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health.96ven the 0CM"2 itself #as adopted as a mere recommendation, as :1 Resolution +o.>;. states@

The ThirtyFourth :orld 1ealth ssembly 5 5 5 adopts, * te e*e o5 Artc6e 23 o5 teCo*ttto*, the 0nternational Code of Marketing of "reastmilk 2ubstitutes anne5ed to thepresent resolution. )6mphasis supplied*

The 0ntroduction to the 0CM"2 also reads as follo#s@

0n %!i"ares v. a-ada>=and Shangri*la International otel !anage%ent, td. v. )evelopers+roup of Co%panies, Inc..>8

The :orld 0ntellectual Property (rgani7ation ):0P(*, a speciali7ed agency attached to the 3+ #iththe mandate to promote and protect intellectual property #orld#ide, has resorted to soft la# as arapid means of norm creation, in order to reflect and respond to the changing needs and demandsof its constituents.>9(ther international organi7ations #hich have resorted to soft la# include the0nternational Iabor (rgani7ation and the Food and griculture (rgani7ation )in the form ofthe Code( Ali%entarius*.;-

:1( has resorted to soft la#. This #as most evident at the time of the 2evere cute Respiratory2yndrome )2R2* and vian flu outbreaks.
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&lthough the I-R Resolution does not create new international law +inding on -Omem+er states, it provides an excellent example of the power of "soft law" ininternational relations. International law*ers t*picall* distinguish +inding rules ofinternational law/"hard law"/from non/+inding norms, principles, and practices thatinfluence state +ehavior/"soft law." -O has during its existence generated man*soft law norms, creating a "soft law regime" in international governance for pu+lic

health.

The soft la# 2R2 and 01R Resolutions represent significant steps in laying the politicalground#ork for improved international cooperation on infectious diseases. These resolutionsclearly define :1( member states' normative duty to cooperate fully #ith other countriesand #ith :1( in connection #ith infectious disease surveillance and response to outbreaks.

!his dut* is neither +inding nor enforcea+le, +ut, in the wa$e of the 0&R0 epidemic,the dut* is powerful politicall*for t#o reasons. First, the 2R2 outbreak has taught thelesson that participating in, and enhancing, international cooperation on infectious diseasecontrols is in a country's selfinterest 5 5 5 if this #arning is heeded, the soft la# in the2R2 and 01R Resolution could inform the development of general and consistent state

practice on infectious disease surveillance and outbreak response, perhaps crystalli7ingeventually into customary international la# on infectious disease prevention and control.;/

0n the Philippines, the e5ecutive department implemented certain measures recommended by :1(to address the outbreaks of 2R2 and vian flu by issuing 65ecutive (rder )6.(.* +o. -/ on pril%, --> and 6.(. +o. 8- on February , --;, delegating to various departments broad po#ers toclose do#n schoolsJestablishments, conduct health surveillance and monitoring, and ban importationof poultry and agricultural products.

0t must be emphasi7ed that even under such an international emergency, the duty of a state toimplement the 01R Resolution #as still considered not binding or enforceable, although saidresolutions had great political influence.

s previously discussed, for an international rule to be considered as customary la#, it must beestablished that such rule is being follo#ed by states because they co*+er t ob6)tor


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of the government's general policies and plans, and e or+er )*+ re6)to* co*cer** te;:6e;e*t)to* o5 et)b6e+ e)6t :o6ce.

0t is crucial to ascertain #hether the absolute prohibition on advertising and other forms of promotionof breastmilk substitutes provided in some :1 Resolutions has been adopted as part of thenational health policy.

Respondents submit that the national policy on infant and young child feeding is embodied in .(.+o. --&--/;, dated May >, --&. "asically, the dministrative (rder declared the follo#ing policyguidelines@ )/* ideal breastfeeding practices, such as early initiation of breastfeeding, e5clusivebreastfeeding for the first si5 months, e5tended breastfeeding up to t#o years and beyondA )*appropriate complementary feeding, #hich is to start at age si5 monthsA )>* micronutrientsupplementationA );* universal salt iodi7ationA )&* the e5ercise of other feeding optionsA and )%*feeding in e5ceptionally difficult circumstances. 0ndeed, the primacy of breastfeeding for children isemphasi7ed as a national health policy. Ho8e>er, *o8ere * A.O. No. 200/0014 t +ec6)re+t)t ) :)rt o5 c e)6t :o6certe;e*t or :ro;oto* o5 bre)t;6 bttteo6+ be )bo6te6< :robte+.

The national policy of protection, promotion and support of breastfeeding cannot automatically bee!uated #ith a total ban on advertising for breastmilk substitutes.

0n vie# of the enactment of the Milk Code #hich does not contain a total ban on the advertising andpromotion of breastmilk substitutes, but instead, specifically creates an 0C #hich #ill regulate saidadvertising and promotion, it follo#s that a total ban policy could be implemented only :r)*t to )6)8amending the Milk Code passed by the constitutionally authori7ed branch of government, thelegislature.

Thus, only the provisions of the Milk Code, but *ot toe o5 bee*t FHA Reo6to*, canbe validly implemented by the 4(1 through the subect R0RR.

Tr+, the Court #ill no# determine #hether the provisions of the R0RR are in accordance #ith thoseof the Milk Code.

0n support of its claim that the R0RR is inconsistent #ith the Milk Code, petitioner alleges thefollo#ing@

/. The Milk Code limits its coverage to children -/ months old, but the R0RR e5tended itscoverage to young children or those from ages t#o years old and beyond@

MI CO!E RIRR

FHEREAS, in order to ensure that safe andade!uate nutrition for infants is provided, thereis a need to protect and promote breastfeedingand to inform the public about the proper use ofbreastmilk substitutes and supplements andrelated products through ade!uate, consistentand obective information and appropriateregulation of the marketing and distribution of

Secto* 2. Pr:oe J These Revised Rulesand Regulations are hereby promulgated toensure the provision of safe and ade!uatenutrition for infants and young children by thepromotion, protection and support ofbreastfeeding and by ensuring the proper useof breastmilk substitutes, breastmilksupplements and related products #hen thes


10/39

the said substitutes, supplements and relatedproductsA

SECTION 4e. 0nfant means a person falling#ithin the age bracket of -/ months.

are medically indicated and only #hennecessary, on the basis of ade!uateinformation and through appropriate marketinand distribution.

Secto* 55. Doung Child means a personfrom the age of more than t#elve )/* monthup to the age of three )>* years )>% months*.

. The Milk Code recogni7es that infant formula may be a proper and possible substitute forbreastmilk in certain instancesA but the R0RR provides e5clusive breastfeeding for infantsfrom -% months and declares that there is no substitute nor replacement for breastmilk@

MI CO!E RIRR

FHEREAS, in order to ensure that safe andade!uate nutrition for infants is provided, thereis a need to protect and promote breastfeedingand to inform the public about the proper use ofbreastmilk substitutes and supplements andrelated products through ade!uate, consistentand obective information and appropriateregulation of the marketing and distribution ofthe said substitutes, supplements and relatedproductsA

Secto* 4. !ec6)r)to* o5 Pr*c:6e J Thefollo#ing are the underlying principles from#hich the revised rules and regulations arepremised upon@

a. 65clusive breastfeeding is for infants from to si5 )%* months.

b. There is no substitute or replacement forbreastmilk.

>. The Milk Code only regulates and does not impose unreasonable re!uirements foradvertising and promotionA R0RR imposes an absolute ban on such activities for breastmilksubstitutes intended for infants from -; months old or beyond, and forbids the use ofhealth and nutritional claims. 2ection /> of the R0RR, #hich provides for a total effect in thepromotion of products #ithin the scope of the Code, is vague@

MI CO!E RIRR

SECTION . Te Ge*er)6 Pb6c )*+Moter. J

)a* +o advertising, promotion or othermarketing materials, #hether #ritten, audio orvisual, for products #ithin the scope of thisCode shall be printed, published, distributed,e5hibited and broadcast unless such materialsare duly authori7ed and approved by an inter

Secto* 4. !ec6)r)to* o5 Pr*c:6e J Thefollo#ing are the underlying principles from#hich the revised rules and regulations arepremised upon@

5 5 5 5

f. dvertising, promotions, or sponsorshipsoinfant formula, breastmilk substitutes and oth


11/39

agency committee created herein pursuant tothe applicable standards provided for in thisCode.

related products are prohibited.

Secto* 11. Probto* J +o advertising,promotions, sponsorships, or marketingmaterials and activities for breastmilk

substitutes intended for infants and youngchildren up to t#entyfour );* months, shall allo#ed, because they tend to convey or givesubliminal messages or impressions thatundermine breastmilk and breastfeeding orother#ise e5aggerate breastmilk substitutesandJor replacements, as #ell as relatedproducts covered #ithin the scope of this Cod

Secto* 13. DTot)6 E55ectD Promotion ofproducts #ithin the scope of this Code must obective and should not e!uate or make the

product appear to be as good or e!ual tobreastmilk or breastfeeding in the advertisingconcept. 0t must not in any case underminebreastmilk or breastfeeding. The total effectshould not directly or indirectly suggest thatbuying their product #ould produce betterindividuals, or resulting in greater love,intelligence, ability, harmony or in any mannebring better health to the baby or other suche5aggerated and unsubstantiated claim.

Secto* 1. Co*te*t o5 M)ter)6. Thefollo#ing shall not be included in advertising,

promotional and marketing materials@

a. Te5ts, pictures, illustrations or information#hich discourage or tend to undermine thebenefits or superiority of breastfeeding or #hideali7e the use of breastmilk substitutes andmilk supplements. 0n this connection, nopictures of babies and children together #iththeir mothers, fathers, siblings, grandparentsother relatives or caregivers )or yayas* shall used in any advertisements for infant formulaand breastmilk supplementsA

b. The term humani7ed, maternali7ed,close to mother's milk or similar #ords indescribing breastmilk substitutes or milksupplementsA

c. Pictures or te5ts that ideali7e the use ofinfant and milk formula.


12/39

Secto* 1. ll health and nutrition claims foproducts #ithin the scope of the Code areabsolutely prohibited. For this purpose, anyphrase or #ords that connotes to increaseemotional, intellectual abilities of the infant an

young child and other like phrases shall not ballo#ed.

;. The R0RR imposes additional labeling re!uirements not found in the Milk Code@

MI CO!E RIRR

SECTION 10. Co*t)*erK)be6. J

)a* Containers andJor labels shall be designedto provide the necessary information about theappropriate use of the products, and in such a#ay as not to discourage breastfeeding.

)b* 6ach container shall have a clear,conspicuous and easily readable andunderstandable message in Pilipino or 6nglishprinted on it, or on a label, #hich message cannot readily become separated from it, and#hich shall include the follo#ing points@

)i* the #ords 0mportant +otice or theire!uivalentA

)ii* a statement of the superiority ofbreastfeedingA

)iii* a statement that the product shall be usedonly on the advice of a health #orker as to theneed for its use and the proper methods of useAand

)iv* instructions for appropriate preparation,

and a #arning against the health ha7ards ofinappropriate preparation.

Secto* 2. Co*te*t J 6ach containerJlabel

shall contain such message, in both Filipinoand 6nglish languages, and #hich messagecannot be readily separated therefrom, relativthe follo#ing points@

)a* The #ords or phrase 0mportant +otice o?overnment :arning or their e!uivalentA

)b* statement of the superiority ofbreastfeedingA

)c* statement that there is no substitute forbreastmilkA

)d* statement that the product shall be usedonly on the advice of a health #orker as to thneed for its use and the proper methods of u

)e* 0nstructions for appropriate preparation,and a #arning against the health ha7ards ofinappropriate preparationA and

)f* The health ha7ards of unnecessary orimproper use of infant formula and otherrelated products including information that

po#dered infant formula may containpathogenic microorganisms and must beprepared and used appropriately.

&. The Milk Code allo#s dissemination of information on infant formula to healthprofessionalsA the R0RR totally prohibits such activity@


13/39

MI CO!E RIRR

SECTION 7. He)6t C)re S


14/39

0nformation, 6ducation and Communication)06C* materials on breastfeeding, holding of oparticipating as speakers in classes orseminars for #omen and children activitiesanto avoid the use of these venues to market

their brands or company names.

SECTION 32. Pr;)r< Re:o*b6t< o5He)6t Forer 0t is the primaryresponsibility of the health #orkers to promotprotect and support breastfeeding andappropriate infant and young child feeding.Part of this responsibility is to continuouslyupdate their kno#ledge and skills onbreastfeeding. +o assistance, support, logistor training from milk companies shall bepermitted.

=. The Milk Code regulates the giving of donationsA R0RR absolutely prohibits it.

MI CO!E RIRR

SECTION . Te Ge*er)6 Pb6c )*+Moter. J

)f* +othing herein contained shall prevent

donations from manufacturers and distributorsof products #ithin the scope of this Code uponre!uest by or #ith the approval of the Ministryof 1ealth.

Secto* 1. !o*)to* Ft* te Sco:e oT Co+e 4onations of products, materialsdefined and covered under the Milk Code andthese implementing rules and regulations, sh

be strictly prohibited.

Secto* 2. Oter !o*)to* B< M6Co;:)*e Not Co>ere+ b< t Co+e. 4onations of products, e!uipments, and thelike, not other#ise falling #ithin the scope ofthis Code or these Rules, given by milkcompanies and their agents, representatives#hether in kind or in cash, may only becoursed through the 0nter gency Committee)0C*, #hich shall determine #hether suchdonation be accepted or other#ise.

8. The R0RR provides for administrative sanctions not imposed by the Milk Code.

MI CO!E RIRR


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Secto* 4. A+;*tr)t>e S)*cto*. JThfollo#ing administrative sanctions shall beimposed upon any person, uridical or naturafound to have violated the provisions of theCode and its implementing Rules and

Regulations@

a* /stviolation K :arningA

b* ndviolation K dministrative fine of aminimum of Ten Thousand )P/-,---.--* toFifty Thousand )P&-,---.--* Pesos, dependion the gravity and e5tent of the violation,including the recall of the offending productA

c* >rdviolation K dministrative Fine of aminimum of 2i5ty Thousand )P%-,---.--* to

(ne 1undred Fifty Thousand )P/&-,---.--*Pesos, depending on the gravity and e5tent othe violation, and in addition thereto, the recaof the offending product, and suspension of tCertificate of Product Registration )CPR*A

d* ;thviolation Kdministrative Fine of aminimum of T#o 1undred Thousand)P--,---.--* to Five 1undred )P&--,---.--Thousand Pesos, depending on the gravity ae5tent of the violationA and in addition theretothe recall of the product, revocation of theCPR, suspension of the Iicense to (perate)IT(* for one yearA

e* &thand succeeding repeated violations Kdministrative Fine of (ne Million)P/,---,---.--* Pesos, the recall of theoffending product, cancellation of the CPR,revocation of the Iicense to (perate )IT(* othe company concerned, including theblacklisting of the company to be furnished th4epartment of "udget and Management)4"M* and the 4epartment of Trade and0ndustry )4T0*A

f* n additional penalty of T#o Thousand Fiv1undred )P,&--.--* Pesos per day shall bemade for every day the violation continuesafter having received the order from the 0C other such appropriate body, notifying andpenali7ing the company for the infraction.


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For purposes of determining #hether or notthere is repeated violation, each productviolation belonging or o#ned by a company,including those of their subsidiaries, aredeemed to be violations of the concerned mil

company and shall not be based on thespecific violating product alone.

9. The R0RR provides for repeal of e5isting la#s to the contrary.

The Court shall resolve the merits of the allegations of petitioner seriati%.

/. Petitioner is mistaken in its claim that the Milk Code's coverage is limited only to children -/months old. 2ection > of the Milk Code states@

26CT0(+ >. Scope of the CodeK The Code applies to the marketing, and practices related

thereto, of the follo#ing products@ breastmilk substitutes, including infant formulaA other milkproducts, foods and beverages, including bottlefed complementary foods, #hen marketed orother#ise represented to be suitable, #ith or #ithout modification, for use as a partial or totalreplacement of breastmilkA feeding bottles and teats. 0t also applies to their !uality andavailability, and to information concerning their use.

Clearly, the coverage of the Milk Code is not dependent on the age of the child but on the *+ o5:ro+ctbeing marketed to the public. The la# treats infant formula, bottlefed complementary food,and breastmilk substitute as separate and distinct product categories.

2ection ;)h* of the Milk Code defines infant formula as a breastmilk substitute 5 5 5 to satisfy thenormal nutritional re!uirements of infants up to bet#een four to si5 months of age, and adapted to

their physiological characteristicsA #hile under 2ection ;)b*, bottlefed complementary food refers toany food, #hether manufactured or locally prepared, suitable as a complement to breastmilk orinfant formula, #hen either becomes insufficient to satisfy the nutritional re!uirements of the infant.

n infant under 2ection ;)e* is a person falling #ithin the age bracket -/ months. 0t is thenourishment of this group of infants or children aged -/ months that is sought to be promoted andprotected by the Milk Code.

"ut there is another target group. "reastmilk substitute is defined under 2ection ;)a* as any foodbeing marketed or other#ise presented as a partial or total replacement for breastmilk, #hether ornot suitable for that purpose.T ecto* co*:co6< 6)c re5ere*ce to )*< :)rtc6)r )e/ro: o5 c6+re*. He*ce, te :ro>o* o5 te M6 Co+e c)**ot be co*+ere+ ec6>e 5orc6+re* )e+ 0/12 ;o*t. 0n other #ords, breastmilk substitutes may also be intended for youngchildren more than / months of age. Therefore, by regulating breastmilk substitutes, the Milk Codealso intends to protect and promote the nourishment of children more than / months old.

6vidently, as long as #hat is being marketed falls #ithin the scope of the Milk Code as provided in2ection >, then it can be subect to regulation pursuant to said la#, even if the product is to be usedby children aged over / months.

There is, therefore, nothing obectionable #ith 2ections ;and &)ff*;>of the R0RR.
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. 0t is also incorrect for petitioner to say that the R0RR, unlike the Milk Code, does not recogni7e thatbreastmilk substitutes may be a proper and possible substitute for breastmilk.

The entirety of the R0RR, not merely truncated portions thereof, must be considered and construedtogether. s held in )e una v. Pascual,;;tGhe particular #ords, clauses and phrases in the Ruleshould not be studied as detached and isolated e5pressions, but the #hole and every part thereof

must be considered in fi5ing the meaning of any of its parts and in order to produce a harmonious#hole.

2ection = of the R0RR provides that #hen medically indicated and only #hen necessary, te e o5bre)t;6 bttte :ro:erif based on complete and updated information. 2ection 8 of theR0RR also states that information and educational materials should include information on the properuse of infant formula #hen the use thereof is needed.

1ence, te RIRR, t 6e te M6 Co+e, )6o reco*=e t)t * cert)* c)e, te e o5bre)t;6 bttte ;)< be :ro:er.

>. The Court shall ascertain the merits of allegations >;&and ;;%together as they are interlinked #ith

each other.

To resolve the !uestion of #hether the labeling re!uirements and advertising regulations under theR0RR are valid, it is important to deal first #ith the nature, purpose, and depth of the regulatorypo#ers of the 4(1, as defined in general under the /98= dministrative Code,;=and as delegated inparticular under the Milk Code.

1ealth is a legitimate subect matter for regulation by the 4(1 )and certain other administrativeagencies* in e5ercise of police po#ers delegated to it. The sheer span of urisprudence on thatmatter precludes the need to further discuss it. .;81o#ever, health information, particularly advertisingmaterials on apparently nonto5ic products like breastmilk substitutes and supplements, is arelatively ne# area for regulation by the 4(1.;9

s early as the /9/= Revised dministrative Code of the Philippine 0slands,&-health information #asalready #ithin the ambit of the regulatory po#ers of the predecessor of 4(1.&/2ection 9>8 thereofcharged it #ith the duty to protect the health of the people, and vested it #ith such po#ers as )g* thedissemination of hygienic information among the people and especiall* the inculcation of$nowledge as to the proper care of infantsand the methods of preventing and combatingdangerous communicable diseases.

2eventy years later, the /98= dministrative Code tasked respondent 4(1 to carry out the statepolicy pronounced under 2ection /&, rticle 00 of the /98= Constitution, #hich is to protect andpromote the right to health of the people and instill health consciousnessamong them.&To thatend, it #as granted under 2ection > of the dministrative Code the po#er to )%* propagate healthinformation and educate the populationon important health, medical and environmental matters

#hich have health implications.&>

:hen it comes to information regarding nutrition of infants and young children, ho#ever, the MilkCode specifically delegated to the Ministry of 1ealth )hereinafter referred to as 4(1* the po#er toensure that there is ade!uate, consistent and obective information on breastfeeding and use ofbreastmilk substitutes, supplements and related productsA and the po#er to co*tro6suchinformation. These are e5pressly provided for in 2ections / and &)a*, to #it@
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26CT0(+ /. I%ple%entation and !onitoringK

5 5 5 5

)b* The Ministry of 1ealth shall be principally responsible for the implementation andenforcement of the provisions of this Code. For this purpose, the Ministry of 1ealth shall

have the follo#ing po#ers and functions@

)/* To promulgate such rules and regulations as are necessary or proper for theimplementation of this Code and the accomplishment of its purposes and obectives.

5 5 5 5

);* To e5ercise such other po#ers and functions as may be necessary for orincidental to the attainment of the purposes and obectives of this Code.

26CT0(+ &. Infor%ation and /ducationK

)a* The government shall ensure that obect>e )*+ co*te*t information is provided oninfant feeding, for use by families and those involved in the field of infant nutrition. Thisresponsibility shall cover the planning, provision, design and dissemination of information,and the control thereof, on infant nutrition. )6mphasis supplied*

Further, 4(1 is authori7ed by the Milk Code to co*tro6 the content of any information onbreastmilk vis*0*visbreastmilk substitutes, supplement and related products, in the follo#ing manner@

26CT0(+ &. 5 5 5

)b* 0nformational and educational materials, #hether #ritten, audio, or visual, dealing #ith thefeeding of infants and intended to reach pregnant #omen and mothers of infants, shall

include clear information on all the follo#ing points@ )/* the benefits and superiority ofbreastfeedingA )* maternal nutrition, and the preparation for and maintenance ofbreastfeedingA )>* the negative effect on breastfeeding of introducing partial bottlefeedingA );*the difficulty of reversing the decision not to breastfeedA and )&* #here needed, the properuse of infant formula, #hether manufactured industrially or homeprepared. hen suchmaterials contain information a+out the use of infant formula, the* shall include thesocial and financial implications of its use the health ha(ards of inappropriate foodsor feeding methods and, in particular, the health ha(ards of unnecessar* or improperuse of infant formula and other +reastmil$ su+stitutes. 0uch materials shall not usean* picture or text which ma* ideali(e the use of +reastmil$ su+stitutes.

S/C1IO2 3. ealth 4orkers 5

5 5 5 5

)b* 0nformation provided by manufacturers and distributors to health professionals regardingproducts #ithin the scope of this Code )66 be retrcte+ to ce*t5c )*+ 5)ct)6;)tter, )*+ c *5or;)to* )66 *ot ;:6< or cre)te ) be6e5 t)t bott6e5ee+* e>)6e*t or :eror to bre)t5ee+*. It )66 )6o *c6+e te *5or;)to* :ec5e+* Secto* b.


19/39

S/C1IO2 $6. Containers7a&el 5

)a* Containers andJor labels shall be designed to provide the necessary information aboutthe appropriate use of the products, and * c ) 8)< ) *ot to +cor)ebre)t5ee+*.

5 5 5 5

)d* The term humani7ed, maternali7ed or similar terms shall not be used. )6mphasissupplied*

The 4(1 is also authori7ed to control the purpose of the information and to #hom such informationmay be disseminated under 2ections % through 9 of the Milk Code&;to ensure that the informationthat #ould reach pregnant #omen, mothers of infants, and health professionals and #orkers in thehealth care system is restricted to scientific and factual matters and shall *otimply or create a beliefthat bottlefeeding is e!uivalent or superior to breastfeeding.

0t bears emphasis, ho#ever, that the 4(1's po#er under the Milk Code to co*tro6information

regarding breastmilk vis*a*visbreastmilk substitutes *ot )bo6teas the po#er to control doesnot encompass the po#er to absolutely prohibit the advertising, marketing, and promotion ofbreastmilk substitutes.

The follo#ing are the provisions of the Milk Code that une!uivocally indicate that the control overinformation given to the 4(1 is not absolute and that absolute prohibition is not contemplated by theCode@

a* 2ection #hich re!uires ade!uate information and appropriate marketing and distributionof breastmilk substitutes, to #it@

26CT0(+ .Ai% of the Code 5 The aim of the Code is to contribute to the provision

of safe and ade!uate nutrition for infants by the protection and promotion ofbreastfeeding and by ensuring the proper use of breastmilk substitutes andbreastmilk supplements #hen these are necessary, on the basis of ade!uateinformation and through appropriate marketing and distribution.

b* 2ection > #hich specifically states that the Code applies to the marketing of and practicesrelated to breastmilk substitutes, including infant formula, and to information concerning theiruseA

c* 2ection &)a* #hich provides that the government shall ensure that obective andconsistent information is provided on infant feedingA

d* 2ection &)b* #hich provides that #ritten, audio or visual informational and educationalmaterials shall not use any picture or te5t #hich may ideali7e the use of breastmilksubstitutes and should include information on the health ha7ards of unnecessary or improperuse of said productA

e* 2ection %)a* in relation to 2ection /)a* #hich creates and empo#ers the 0C to revie#and e5amine advertising, promotion, and other marketing materialsA
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f* 2ection 8)b* #hich states that milk companies may provide information to healthprofessionals but such information should be restricted to factual and scientific matters andshall not imply or create a belief that bottlefeeding is e!uivalent or superior to breastfeedingAand

g* 2ection /- #hich provides that containers or labels should not contain information that

#ould discourage breastfeeding and ideali7e the use of infant formula.

0t is in this conte5t that the Court no# e5amines the assailed provisions of the R0RR regardinglabeling and advertising.

2ections />&&on total effect and %&%of Rule E00 of the R0RR contain some labeling re!uirements,specifically@ a* that there be a statement that there is no substitute to breastmilkA and b* that there bea statement that po#dered infant formula may contain pathogenic microorganisms and must beprepared and used appropriately. 2ection /%&=of the R0RR prohibits all health and nutrition claims forproducts #ithin the scope of the Milk Code, such as claims of increased emotional and intellectualabilities of the infant and young child.

These re!uirements and limitations are consistent #ith the provisions of 2ection 8 of the Milk Code,to #it@

26CT0(+ 8. ealth orkers

5 5 5 5

)b* 0nformation provided by manufacturers and distributors to health professionals regardingproducts #ithin the scope of this Code shall be retrcte+ to ce*t5c )*+ 5)ct)6 ;)tter,and such information)66 *otimply or create a belief that bottlefeedingis e2uivalentor :erorto breastfeeding. 0t shall also include the information specified in2ection &.&8)6mphasis supplied*

and 2ection /-)d*&9#hich bars the use on containers and labels of the terms humani7ed,maternali7ed, or similar terms.

These provisions of the Milk Code e5pressly forbid information that #ould imply or create a beliefthat there is any milk product e!uivalent to breastmilk or #hich is humani7ed or maternali7ed, assuch information #ould be inconsistent #ith the superiority of breastfeeding.

0t may be argued that 2ection 8 of the Milk Code refers only to information given to health #orkersregarding breastmilk substitutes, not to containers and labels thereof. 1o#ever, such restrictiveapplication of 2ection 8)b* #ill result in the absurd situation in #hich milk companies and distributorsare forbidden to claim to health #orkers that their products are substitutes or e!uivalents of

breastmilk, and yet be allo#ed to display on the containers and labels of their products the e5actopposite message. That aske#ed interpretation of the Milk Code is precisely #hat 2ection &)a*thereof seeks to avoid by mandating that all information regarding breastmilk vis*a*visbreastmilksubstitutes be consistent, at the same time giving the government control over planning, provision,design, and dissemination of information on infant feeding.

Thus, 2ection %)c* of the R0RR #hich re!uires containers and labels to state that the productoffered is not a substitute for breastmilk, is a reasonable means of enforcing 2ection 8)b* of the Milk


21/39

Code and deterring circumvention of the protection and promotion of breastfeeding as embodied in2ection %-of the Milk Code.

2ection %)f*%/of the R0RR is an e!ually reasonable labeling re!uirement. 0t implements 2ection &)b*of the Milk Code #hich reads@

26CT0(+ &. 5 5 5

5 5 5 5

)b* 0nformational and educational materials, #hether #ritten, audio, or visual, dealing #ith thefeeding of infants and intended to reach pregnant #omen and mothers of infants, shallinclude clear information on all the follo#ing points@ 5 5 5 )&* #here needed, the proper use ofinfant formula, #hether manufactured industrially or homeprepared. :hen such materialscontain information about the use of infant formula, they shall include the social and financialimplications of its useAthe health ha(ards of inappropriate foods or feeding methodsand, in particular, the health ha(ards of unnecessar* or improper use of infant formulaand other +reastmil$ su+stitutes. 2uch materials shall not use any picture or te5t #hich

may ideali7e the use of breastmilk substitutes. )6mphasis supplied*

The label of a product contains *5or;)to*about said product intended for the buyers thereof. Thebuyers of breastmilk substitutes are mothers of infants, and 2ection % of the R0RR merely adds afair #arning about the likelihood of pathogenic microorganisms being present in infant formula andother related products #hen these are prepared and used inappropriately.

PetitionerLs counsel has admitted during the hearing on


22/39

)a* For purposes of 2ection %)a* of this Code, an interagency committee composed of thefollo#ing members is hereby created@

Minister of 1ealth Chairman

Minister of Trade and 0ndustry Member

Minister of * To prescribe the internal and operational procedure for the e5ercise of its po#ersand functions as #ell as the performance of its duties and responsibilitiesA and

);* To :ro;6)te c r6e )*+ re6)to* ) )re *ece)r< or :ro:er 5orte ;:6e;e*t)to* o5 Secto* ) o5 t Co+e. 5 5 5 )6mphasis supplied*

1o#ever, 2ection // of the R0RR, to #it@

26CT0(+ //. Prohi&itionJ +o advertising, promotions, sponsorships, or marketing materials

and activities for breastmilk substitutes intended for infants and young children up to t#entyfour );* months, shall be allo#ed, because they tend to convey or give subliminalmessages or impressions that undermine breastmilk and breastfeeding or other#isee5aggerate breastmilk substitutes andJor replacements, as #ell as related products covered#ithin the scope of this Code.

prohibits advertising, promotions, sponsorships or marketing materials and activities for breastmilksubstitutes in line #ith the R0RRLs declaration of principle under 2ection ;)f*, to #it@


23/39

26CT0(+ ;. )eclaration of Principles 5

5 5 5 5

)f* dvertising, promotions, or sponsorships of infant formula, breastmilk substitutes andother related products are prohibited.

The 4(1, through its corespondents, evidently arrogated to itself not only the regulatory authoritygiven to the 0C but also imposed absolute prohibition on advertising, promotion, and marketing.

Det, oddly enough, 2ection / of the R0RR reiterated the re!uirement of the Milk Code in 2ection %thereof for prior approval by 0C of all advertising, marketing and promotional materials prior todissemination.

6ven respondents, through the (2?, ackno#ledged the authority of 0C, and repeatedly insisted,during the oral arguments on


24/39

Madam 2olicitor ?eneral, under the Milk Code, #hich body has authority or po#er topromulgate Rules and Regulations regarding the dvertising, Promotion and Marketing of"reastmilk 2ubstitutes$

2(I0C0T(R ?6+6RI 46E+46R@

Dour 1onor, please, it is provided that the 0ntergency Committee, Dour 1onor.

5 5 5 5

22(C0T6 and /&, Dour 1onor, because it is recogni7ed that the 0nter

gency Committee has that po#er to evaluate promotional materials, Dour 1onor.

22(C0T6


25/39

2o in short, #ill you please clarify there's no absolute ban on advertisement regarding milksubstitute regarding infants t#o )* years belo#$

2(I0C0T(R ?6+6RI 46E+46R@

:e can proudly say that the general rule is that there is a prohibition, ho#ever, #e take

e5ceptions and standards have been set. (ne of #hich is that, the 0ntergency Committeecan allo# if the advertising and promotions #ill not undermine breastmilk and breastfeeding,Dour 1onor.%>

2ections // and ;)f* of the R0RR are clearly violative of the Milk Code.

1o#ever, although it is the 0C #hich is authori7ed to promulgate rules and regulations for theapproval or reection of advertising, promotional, or other marketing materials under 2ection /)a* ofthe Milk Code, said provision must be related to 2ection % thereof #hich in turn provides that therules and regulations must be pursuant to the applicable standards provided for in this Code. 2aidstandards are set forth in 2ections &)b*, 8)b*, and /- of the Code, #hich, at the risk of beingrepetitious, and for easy reference, are !uoted hereunder@

26CT0(+ &. Infor%ation and /ducation 5

5 5 5 5

)b* 0nformational and educational materials, #hether #ritten, audio, or visual, dealing #ith thefeeding of infants and intended to reach pregnant #omen and mothers of infants, shallinclude clear information on all the follo#ing points@ )/* the benefits and superiority ofbreastfeedingA )* maternal nutrition, and the preparation for and maintenance ofbreastfeedingA )>* the negative effect on breastfeeding of introducing partial bottlefeedingA );*the difficulty of reversing the decision not to breastfeedA and )&* #here needed, the properuse of infant formula, #hether manufactured industrially or homeprepared. :hen such

materials contain information about the use of infant formula, they shall include the socialand financial implications of its useA the health ha7ards of inappropriate foods of feedingmethodsA and, in particular, the health ha7ards of unnecessary or improper use of infantformula and other breastmilk substitutes. 2uch materials shall not use any picture or te5t#hich may ideali7e the use of breastmilk substitutes.

5 5 5 5

26CT0(+ 8. ealth 4orkers.K

5 5 5 5

)b* 0nformation provided by manufacturers and distributors to health professionals regardingproducts #ithin the scope of this Code shall be restricted to scientific and factual matters andsuch information shall not imply or create a belief that bottle feeding is e!uivalent or superiorto breastfeeding. 0t shall also include the information specified in 2ection &)b*.

5 5 5 5

26CT0(+ /-. Containers7a&el3
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)a* Containers andJor labels shall be designed to provide the necessary information aboutthe appropriate use of the products, and in such a #ay as not to discourage breastfeeding.

)b* 6ach container shall have a clear, conspicuous and easily readable and understandablemessage in Pilipino or 6nglish printed on it, or on a label, #hich message can not readilybecome separated from it, and #hich shall include the follo#ing points@

)i* the #ords 0mportant +otice or their e!uivalentA

)ii* a statement of the superiority of breastfeedingA

)iii* a statement that the product shall be used only on the advice of a health #orkeras to the need for its use and the proper methods of useA and

)iv* instructions for appropriate preparation, and a #arning against the health ha7ardsof inappropriate preparation.

2ection /)b* of the Milk Code designates the 4(1 as the principal implementing agency for the

enforcement of the provisions of the Code. 0n relation to such responsibility of the 4(1, 2ection &)a*of the Milk Code states that@

26CT0(+ &. Infor%ation and /ducation 5

)a* The government shall ensure that obect>e )*+ co*te*t information is provided oninfant feeding, for use by families and those involved in the field of infant nutrition. Thisresponsibility shall cover the planning, provision, design and dissemination of information,and the control thereof, on infant nutrition. )6mphasis supplied*

Thus,te !OH ) te *5c)*t re:o*b6t< to tr)*6)te *to o:er)to*)6 ter; tet)*+)r+ et 5ort * Secto* , L, )*+ 10 o5 te M6 Co+e, b< 8c te IAC )66 cree*

)+>ert*, :ro;oto*)6, or oter ;)ret* ;)ter)6.

0t is pursuant to such responsibility that the 4(1 correctly provided for 2ection /> in the R0RR #hichreads as follo#s@

26CT0(+ />. 1otal /ffect Promotion of products #ithin the scope of this Code must beobective and should not e!uate or make the product appear to be as good or e!ual tobreastmilk or breastfeeding in the advertising concept. 0t must not in any case underminebreastmilk or breastfeeding. The total effect should not directly or indirectly suggest thatbuying their product #ould produce better individuals, or resulting in greater love,intelligence, ability, harmony or in any manner bring better health to the baby or other suche5aggerated and unsubstantiated claim.

2uch standards bind the 0C in formulating its rules and regulations on advertising, promotion, andmarketing. Through that single provision, the 4(1 e5ercises control over the information content ofadvertising, promotional and marketing materials on breastmilk vis*a*visbreastmilk substitutes,supplements and other related products. 0t also sets a viable standard against #hich the 0C mayscreen such materials before they are made public.

0n /9ui*Asia Place%ent, Inc. vs. )epart%ent of :oreign Affairs,%;the Court held@
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5 5 5 TGhis Court had, in the past, accepted as sufficient standards the follo#ing@ publicinterest, ustice and e!uity, public convenience and #elfare, and simplicity, economyand #elfare.%&

0n this case, correct information as to infant feeding and nutrition is infused #ith public interest and#elfare.

;. :ith regard to activities for dissemination of information to health professionals, the Court alsofinds that there is no inconsistency bet#een the provisions of the Milk Code and the R0RR. 2ection=)b*%%of the Milk Code, in relation to 2ection 8)b*%=of the same Code, allo#s dissemination ofinformation to health professionals but such*5or;)to* retrcte+ to ce*t5c )*+ 5)ct)6;)tter.

Contrary to petitioner's claim, 2ection of the R0RR does not prohibit the >* o5 *5or;)to* toe)6t :ro5eo*)6o* ce*t5c )*+ 5)ct)6 ;)tter. :hat it prohibits is the involvement of themanufacturer and distributor of the products covered by the Code in activities for the promotion,education and production of 0nformation, 6ducation and Communication )06C* materials regardingbreastfeeding that are *te*+e+ 5or8o;e* )*+ c6+re*. 2aid provision cannot be construed to

encompass even the +e;*)to* o5 *5or;)to* to e)6t :ro5eo*)6, ) retrcte+ by theMilk Code.

&. +e5t, petitioner alleges that 2ection 8)e*%8of the Milk Code permits milk manufacturers anddistributors to e5tend assistance in research and in the continuing education of health professionals,#hile 2ections and > of the R0RR absolutely forbid the same. Petitioner also assails 2ection;)i*%9of the R0RR prohibiting milk manufacturers' and distributors' participation in any policymakingbody in relation to the advancement of breastfeeding.

2ection ;)i* of the R0RR provides that milk companies and their representatives should not form partof any policymaking body or entity in relation to the advancement of breastfeeding. The Court findsnothing in said provisions #hich contravenes the Milk Code. +ote that under 2ection /)b* of theMilk Code, it is te !OH 8c )66 be :r*c:)66< re:o*b6efor the implementation andenforcement of the provisions of said Code. 0t is entirely up to the 4(1 to decide #hich entities tocall upon or allo# to be part of policymaking bodies on breastfeeding. Therefore, the R0RR'sprohibition on milk companiesL participation in any policymaking body in relation to the advancementof breastfeeding is in accord #ith the Milk Code.

Petitioner is also mistaken in arguing that 2ection of the R0RR prohibits milk companies fromgiving reasearch assistance and continuing education to health professionals. Secto* 22=-o5 teRIRR +oe *ot :ert)* to ree)rc )t)*ce to or te co*t** e+c)to* o5 e)6t:ro5eo*)6A rather, it deals #ith breastfeeding promotion and e+c)to* 5or 8o;e* )*+c6+re*. +othing in 2ection of the R0RR prohibits milk companies from giving assistance forresearch or continuing education to health professionalsA hence, petitioner's argument against thisparticular provision must be struck do#n.

0t is 2ections 9=/and /-=of the R0RR #hich govern research assistance. 2aid sections of the R0RRprovide thatree)rc )t)*ce 5or e)6t 8orer )*+ ree)rcer ;)< be )66o8e+ :o*)::ro>)6 o5 )* etc co;;ttee, )*+ 8t cert)* +c6ore rere;e*t ;:oe+ o* te;6 co;:)*< )*+ o* te rec:e*t o5 te ree)rc )8)r+.

The Milk Code endo#s the 4(1 #ith the po#er to determine ho# such research or educationalassistance may be given by milk companies or under #hat conditions health #orkers may accept the
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assistance. Thus, 2ections 9 and /- of the R0RR imposing limitations on the kind of research doneor e5tent of assistance given by milk companies are completely in accord #ith the Milk Code.

Petitioner complains that 2ection >=>of the R0RR prohibits milk companies from giving assistance,support, logistics or training to health #orkers. This provision is #ithin the prerogative given to the4(1 under 2ection 8)e*=;of the Milk Code, #hich provides that manufacturers and distributors of

breastmilk substitutes may assist in researches, scholarships and the continuing education, of healthprofessionals in accordance #ith the rules and regulations promulgated by the Ministry of 1ealth,no# 4(1.

%. s to the R0RR's prohibition on donations, said provisions are also consistent #ith the Milk Code.2ection %)f* of the Milk Code provides that donations ;))6 o5 te !OH. The la#does not proscribe the refusal of donations. The Milk Code leaves it purely to the discretion of the4(1 #hether to re!uest or accept such donations. The 4(1 then appropriately e5ercised itsdiscretion through 2ection &/=&of the R0RR #hich sets forth its policy not to re!uest or approvedonations from manufacturers and distributors of breastmilk substitutes.

0t #as #ithin the discretion of the 4(1 #hen it provided in 2ection & of the R0RR that any donationfrom milk companies not covered by the Code should be coursed through the 0C #hich shalldetermine #hether such donation should be accepted or refused. s reasoned out by respondents,the 4(1 is not mandated by the Milk Code to accept donations. For that matter, no person or entitycan be forced to accept a donation. There is, therefore, no real inconsistency bet#een the R0RR andthe la# because the Milk Code does not prohibit the 4(1 from refusing donations.

=. :ith regard to 2ection ;% of the R0RR providing for administrative sanctions that are not found inthe Milk Code, the Court upholds petitioner's obection thereto.

Respondent's reliance on Civil Aeronautics Board v. Philippine Air ines, Inc.=%is misplaced. Theglaring difference in said case and the present case before the Court is that, in the Civil AeronauticsBoard, the Civil eronautics dministration )C* #as e:re6< r)*te+ b< te 6)8 R.A. No.77 te :o8erto impose fines and civil penalties, #hile the Civil eronautics "oard )C"* #asgranted by the same la# the po#er to revie# on appeal the order or decision of the C and todetermine #hether to impose, remit, mitigate, increase or compromise such fine and civil penalties.Thus, the Court upheld the C"'s Resolution imposing administrative fines.

0n a more recent case, Pere8 v. P+ efillers Association of the Philippines, Inc.,==the Court upheldthe 4epartment of 6nergy )4(6* Circular +o. ----%/-implementing BatasPa%&ansa)".P.* Blg. >>. The circular provided for fines for the commission ofprohibited acts. The Court found that nothing in the circular contravened the la# because the 4(6#as e5pressly authori7ed by ".P. Blg.>> and R.. +o. =%>8 to impose fines or penalties.

0n the present case, neither the Milk Code nor the Revised dministrative Code grants the 4(1 the

authority to fi5 or impose administrative fines. Thus, #ithout any e5press grant of po#er to fi5 orimpose such fines, the 4(1 cannot provide for those fines in the R0RR. 0n this regard, the 4(1again e5ceeded its authority by providing for such fines or sanctions in 2ection ;% of the R0RR. 2aidprovision is, therefore, null and void.

The 4(1 is not left #ithout any means to enforce its rules and regulations. 2ection /)b* )>* of theMilk Code authori7es the 4(1 to cause the prosecution of the violators of this Code and otherpertinent la#s on products covered by this Code. 2ection /> of the Milk Code provides for the


29/39

penalties to be imposed on violators of the provision of the Milk Code or the rules and regulationsissued pursuant to it, to #it@

26CT0(+ />. Sanctions 5

)a* ny person #ho violates the provisions of this Code or te r6e )*+ re6)to*

e+ :r)*t to t Co+eshall, upon conviction, be punished by a penalty of t#o )*months to one )/* year imprisonment or a fine of not less than (ne Thousand Pesos)P/,---.--* nor more than Thirty Thousand Pesos )P>-,---.--* or both. 2hould the offensebe committed by a uridical person, the chairman of the "oard of 4irectors, the president,general manager, or the partners andJor the persons directly responsible therefor, shall bepenali7ed.

)b* ny license, permit or authority issued by any government agency to any health #orker,distributor, manufacturer, or marketing firm or personnel for the practice of their profession oroccupation, or for the pursuit of their business, may, upon recommendation of the Ministry of1ealth, be suspended or revoked in the event of repeated violations of this Code, or of therules and regulations issued pursuant to this Code. )6mphasis supplied*

8. PetitionerLs claim that 2ection &= of the R0RR repeals e5isting la#s that are contrary to the R0RRis frivolous.

2ection &= reads@

26CT0(+ &=. epealing Clause ll orders, issuances, and rules and regulations or partsthereof inconsistent #ith these revised rules and implementing regulations are herebyrepealed or modified accordingly.

2ection &= of the R0RR does not provide for the repeal of la#s but only orders, issuances and rulesand regulations. Thus, said provision is valid as it is #ithin the 4(1's rulemaking po#er.

n administrative agency like respondent possesses !uasilegislative or rulemaking po#er or thepo#er to make rules and regulations #hich results in delegated legislation that is #ithin the confinesof the granting statute and the Constitution, and subect to the doctrine of nondelegability andseparability of po#ers.=82uch e5press grant of rulemaking po#er necessarily includes the po#er toamend, revise, alter, or repeal the same.=9This is to allo# administrative agencies fle5ibility informulating and adusting the details and manner by #hich they are to implement the provisions of ala#,8-in order to make it more responsive to the times. 1ence, it is a standard provision inadministrative rules that prior issuances of administrative agencies that are inconsistent there#ithare declared repealed or modified.

0n fine, only 2ections ;)f*, // and ;% are ultra vires, beyond the authority of the 4(1 to promulgateand in contravention of the Milk Code and, therefore, null and void. The rest of the provisions of theR0RR are in consonance #ith the Milk Code.

Iastly, petitioner makes a catchall allegation that@

5 5 5 TGhe !uestioned R0RR sought to be implemented by the Respondents is **ece)re, )*+ o55e*>e to te +e :roce c6)e o5 te Co*ttto*, *o5)r) te );e * retr)*t o5 tr)+eand because a provision therein is inade!uate to


30/39

provide the public #ith a comprehensible basis to determine #hether or not they havecommitted a violation.8/)6mphasis supplied*

Petitioner refers to 2ections ;)f*,8;)i*,8>&)#*,8;//,8&,8%>,8=;%,88and &89as the provisions thatsuppress the trade of milk and, thus, violate the due process clause of the Constitution.

The framers of the constitution #ere #ell a#are that trade must be subected to some form ofregulation for the public good. Public interest must be upheld over business interests. 9-0n Pest!anage%ent Association of the Philippines v. :ertili8er and Pesticide Authority,9/it #as held thus@

5 5 5 Furthermore, as held in ssociation of Philippine Coconut 4esiccators v. PhilippineCoconut uthority,+e:te te 5)ct t)t Dor :ree*t Co*ttto* e*r*e 5reee*ter:re ) ) :o6ce to te o>er*;e*t te :o8er to*ter>e*e 8e*e>er *ece)r< to :ro;ote te e*er)6 8e65)re. There can be no!uestion that the unregulated use or proliferation of pesticides #ould be ha7ardous to ourenvironment. Thus, in the aforecited case, the Court declared that 5ree e*ter:re +oe *otc)66 5or re;o>)6 o5 :rotect>e re6)to*. 5 5 5 It ;t be c6e)r6< e:6)*e+ )*+:ro>e* b< co;:ete*t e>+e*ce t e)ct6< o8 c :rotect>e re6)to* 8o6+

re6t * te retr)*t o5 tr)+e. 6mphasis and underscoring suppliedG

0n this case, petitioner failed to sho# that the proscription of milk manufacturersL participation in anypolicymaking body )2ection ;)i**, classes and seminars for #omen and children )2ection *A thegiving of assistance, support and logistics or training )2ection >*A and the giving of donations)2ection &* #ould unreasonably hamper the trade of breastmilk substitutes. Petitioner has notestablished that the proscribed activities are indispensable to the trade of breastmilk substitutes.Petitioner failed to demonstrate that the aforementioned provisions of the R0RR are unreasonableand oppressive for being in restraint of trade.

Petitioner also failed to convince the Court that 2ection &)#* of the R0RR is unreasonable andoppressive. 2aid section provides for the definition of the term milk company, to #it@

26CT0(+ & 5 5 5. )#* Milk Company shall refer to the o#ner, manufacturer, distributor ofinfant formula, follo#up milk, milk formula, milk supplement, breastmilk substitute orreplacement, or by any other description of such nature, including their representatives #hopromote or other#ise advance their commercial interests in marketing those productsA

(n the other hand, 2ection ; of the Milk Code provides@

)d* 4istributor means a person, corporation or any other entity in the public or private sectorengaged in the business )#hether directly or indirectly* of marketing at the #holesale or retaillevel a product #ithin the scope of this Code. primary distributor is a manufacturer's salesagent, representative, national distributor or broker.

5 5 5 5

)* Manufacturer means a corporation or other entity in the public or private sector engagedin the business or function )#hether directly or indirectly or through an agent or and entitycontrolled by or under contract #ith it* of manufacturing a products #ithin the scope of thisCode.
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+otably, the definition in the R0RR merely merged together under the term milk company theentities defined separately under the Milk Code as distributor and manufacturer. The R0RR alsoenumerated in 2ection &)#* the products manufactured or distributed by an entity that #ould !ualifyit as a milk company, #hereas in the Milk Code, #hat is used is the phrase products #ithin thescope of this Code. Those are the only differences bet#een the definitions given in the Milk Codeand the definition as restated in the R0RR.

2ince all the regulatory provisions under the Milk Code apply e!ually to both manufacturers anddistributors, the Court sees no harm in the R0RR providing for ust one term to encompass bothentities. The definition of milk company in the R0RR and the definitions of distributor andmanufacturer provided for under the Milk Code are practically the same.

The Court is not convinced that the definition of milk company provided in the R0RR #ould bringabout any change in the treatment or regulation of distributors and manufacturers of breastmilksubstitutes, as defined under the Milk Code.

65cept 2ections ;)f*, // and ;%, the rest of the provisions of the R0RR are in consonance #ith theobective, purpose and intent of the Milk Code, constituting reasonable regulation of an industry

#hich affects public health and #elfare and, as such, the rest of the R0RR do not constitute illegalrestraint of trade nor are they violative of the due process clause of the Constitution.

FHERE"ORE,the petition is PARTIA#GRANTE!. 2ections ;)f*, // and ;% of dministrative(rder +o. --%--/ dated May /, --% are declared NUand OI!for being ultra vires. The4epartment of 1ealth and respondents are PROHIBITE!from implementing said provisions.

The Temporary Restraining (rder issued on ugust /&, --% is I"TE!insofar as the rest of theprovisions of dministrative (rder +o. --%--/ is concerned.

SO OR!ERE!.

Puno, ;Chief uisu%&ing, Ynares*Santiago, Sandoval*+utierre8, Carpio, Corona, Carpio*!orales, A8cuna, 1inga, Chico*2a8ario, +arcia, ?elasco,


32/39

Republic of the PhilippinesSUPREME COURT

"aguio City

6+ "+C

G.R. No. 20333 A:r6 22, 2014

(OSE (ESUS M. !ISINI, (R., ROFENA S. !ISINI, IANNE I# P. ME!INA, (ANETTE TORA)*+ ERNESTO SONI!O, (R.,Petitioners,vs.THE SECRETAR# O" (USTICE, THE SECRETAR# O" THE !EPARTMENT O" THE INTERIORAN! OCA GOERNMENT, THE E&ECUTIE !IRECTOR O" THE IN"ORMATION AN!COMMUNICATIONS TECHNOOG# O""ICE, THE CHIE" O" THE PHIIPPINE NATIONAPOICE )*+ THE !IRECTOR O" THE NATIONA BUREAU O" INESTIGATION,Respondents.

5 5

G.R. No. 203299

OUIS DBAROD C. BIRAOGO,Petitioner,vs.NATIONA BUREAU O" INESTIGATION )*+ PHIIPPINE NATIONA POICE, Respondents.

5 5

G.R. No. 20330

AAB NG MAMAMAHA#AG AAM, HUUMAN NG MAMAMA#AN MOEMENT, INC., (ERR#S. #AP, BERTENI DTOTOD CAUSING, HERNANI $. CUARE, PERC# API!, TRAC# CABRERA,

RONA!O E. RENTA, CIRIO P. SABARRE, (R., !ERIN CASTRO, ET A., Petitioners,vs.O""ICE O" THE PRESI!ENT, re:ree*te+ b< Pre+e*t Be**o S;eo* A*o III, SENATEO" THE PHIIPPINES, )*+ HOUSE O" REPRESENTATIES,Respondents.

5 5

G.R. No. 20339

SENATOR TEO"ISTO ! GUINGONA III,

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