Repuhlika ng Pilipinas

Koitiisyon ng Karapatang Pantao ng Pilipinas

(C^omynission on Human Rights of the Philippines)

EO NO. 003: DISCRIMINATORY OR RIGHTS BASED?

CHR ADVISORY ON THE LOCAL ORDINANCE BY THE CITY
OF MANILA
CHR(IV)A2010-005

O n 0 9 S e p t e m b e r 2 0 1 0 , a g r o u p o f w o m e n from t h e C i t y o f M a n i l a , ' w h o
are a l s o P e t i t i o n e r s i n t h e case L o u r d e s O s i l v . M a y o r o f M a n i l a , s o u g h t a d i a l o g u e
w i t h t h e C o m m i s s i o n o n H u m a n R i g h t s o f t h e P h i l i p p i n e s t o discuss t h e i r c o n c e r n
o v e r l o c a l o r d i n a n c e E x e c u t i v e O r d e r N o . 0 0 3 w i t h t h e a p p e l l a t i o n "Declaring
Total Coimnitmeiit and Support to the Responsible Parenthood Movement in
the City of Manila and Enunciating Policy Declaration in Pursuit Thereof.

I t i s a v e r r e d b y t h e g r o u p t h a t since t h e issuance o f E O 0 0 3 , there has b e e n

n o n - p r o c u r e m e n t o f p r o d u c t s a n d services i n c i t y h e a l t h centers a n d hospitals
w h i c h are n o t i n t h e c a t e g o r y o f n a t u r a l f a m i l y p l a n n i n g m e t h o d stipulated i n t h e
fiat. T h i s a c t i o n o f t h e l o c a l g o v e r n m e n t a n d i t s results a r e contested as
d i s c r i m i n a t o r y b y t h e O s i l G r o u p u n d e r t h e n o r m a t i v e standards o f t h e U N
Convention o n the Elimination o f A l l Forms o f Discrimination Against Women,^
and i n v i o l a t i o n o f various provisions found i n the 1987 Constitution, and the
M a g n a Carta o f W o m e n o f 2009.

E x e c u t i v e O r d e r 0 0 3 w a s issued b y t h e n C i t y M a y o r L i t o A t i e n z a o n
F e b r u a r y 2 9 , 2 0 0 0 . T h e O r d e r stipulates t h e f o l l o w i n g , v i z . :

" t h e C i t y s h a l l establish p r o g r a m s a n d a c t i v i t i e s i n C i t y H e a l t h
D e p a r t m e n t a n d i t s h e a l t h centers, O s p i t a l n g M a y n i l a M e d i c a l
Center, G a t A n d r e s B o n i f a c i o M e m o r i a l Center, O s p i t a l n g T o n d o ,
O s p i t a l n g S a m p a l o c , as w e l l as t h e D e p a r t m e n t o f S o c i a l W e l f a r e
w h i c h p r o m o t e a n d o f f e r as i n t e g r a l part o f t h e i r f u n c t i o n s ,
c o u n s e l i n g f a c i l i t i e s f o r n a t u r a l f a m i l y p l a n n i n g a n d responsible
parenthood."^

I t s h o u l d a l s o b e n o t e d t h a t i n t h e s e v e n t h a n d final 'whereas' clause o f t h e

O r d e r , t h e f o l l o w i n g i s stated:

' Osil group, hereafter.

^ CEDAW or the women's convention, hereafter.
^ See Executive Order No. 003 (City of Manila, 2009)para.2, Policy Declaration

Karapatang Pantao: Likas Sa Atin, Tungkulhi Natin

Commonwealth Avenue. U.I'. Complex. Diliman, 1101, Ouezoti Cily, Philippii
Tel. Nos. 927-0172 • 92S-2018 • 928-5655
/
 2
u
" t h e c i t y p r o m o t e s responsible p a r e n t h o o d a n d u p h o l d s
n a t u r a l f a m i l y p l a n n i n g n o t j u s t a m e t h o d b u t as a w a y o f
self-awareness i n p r o m o t i n g t h e c u l t u r e o f l i f e w h i l e
d i s c o u r a g i n g t h e use o f a r t i f i c i a l m e t h o d s o f c o n t r a c e p t i o n ,
like condom, p i l l s , i n t r a u t e r i n e devices, surgical
sterilization, and others."

I n e x a m i n i n g t h e E O , t h e f o c a l issue w i t h i n t h e j u r i s d i c t i o n o f t h e
C o m m i s s i o n t o d e t e r m i n e , is its c o n f o r m i t y w i t h n a t i o n a l l a w s and/or w i t h
i n t e r n a t i o n a l l e g a l standards o n n o n - d i s c r i m i n a t i o n , p a r t i c u l a r l y t h e
CEDAW.

Philippine Law on Non-discrimination of Women

W h i l s t t h e P h i l i p p i n e s is state p a r t y t o t h e W o m e n ' s C o n v e n t i o n , t h e
d i s c o u r s e o n t h e r i g h t t o e q u a l i t y a n d n o n - d i s c r i m i n a t i o n has b e e n l i m i t e d
to the 'equality clause' under the Constitution. T h i s colloquy hinges o n t w o
notable points. First, the M a g n a Carta o f W o m e n w h i c h i s the anti-
d i s c r i m i n a t i o n l a w i n t h e c o u n t r y is a recent i n i t i a t i v e , s u c h t h a t p r e v i o u s l y ,
e n t i t l e m e n t s f o r e x a m p l e , e q u a l n u m b e r o f w o m e n a n d m e n as h i r e d
p e r s o n n e l i n t h e p o l i c e force, c o u l d n o t h a v e b e e n a v a l i d cause o f a c t i o n .
S e c o n d , t h e d u a l i s t view'* o f courts o n t h e r e l a t i o n o f i n t e r n a t i o n a l l a w w i t h
m u n i c i p a l l a w has p l a c e d treaties as t h e C E D A W i n a subordinate status t o
n a t i o n a l l e g i s l a t i o n s , s u c h that, u s i n g t h e f o r m e r e x a m p l e , preference o v e r a
m a l e a p p l i c a n t f o r m e m b e r s h i p i n t h e p o l i c e m a y n o t r e s u l t t o a successful
c l a i m f o r d a m a g e s u n d e r a n o r d i n a r y c i v i l a c t i o n i n a s m u c h as, there w a s n o
positive obligation to achieve the arrangement explicit i n the n e w M a g n a
Carta o f W o m e n .

F u r t h e r , i t is i m p o r t a n t t o articulate t h a t t h e reference t o t h e ' e q u a l i t y

c l a u s e ' i s a f u t i l e a n d s u p e r f i c i a l e f f o r t t o a n s w e r t o issues o f d i s c r i m i n a t i o n
i n that i t i s restrictive o n t w o points. First, this provision is non-self
executing,^ a n d b y its n a t u r e i t is i m p e r a t i v e t o h a v e a n e n a b l i n g l a w f o r i t
t o be a s o u r c e o f exercisable rights. S e c o n d , as has b e e n e x p l a i n e d b y t h e
S u p r e m e C o u r t , t h i s p a r t i c u l a r p r o v i s i o n refers t o l e g a l equality, c o m m o n l y
r e f e r r e d t o as e q u a l i t y b e f o r e t h e l a w . T h e i m p o r t o f t h i s is t h a t regardless
o f status, t h e l a w s h a l l m a k e n o d i s t i n c t i o n i n a p p l i c a t i o n i n t e r m s o f rights
a n d o b l i g a t i o n s . ^ I t s g a p i n g w e a k n e s s lies i n t h e l a c u n a o f a p r i n c i p l e t h a t
e x c l u d e s e q u a l i t y i n t e r m s o f ^ f o r e x a m p l e , strict m a n d a t e t o p r o v i d e f o r
p a r t i c i p a t i o n i n p o l i c y f o r m u l a t i o n o r p r o g r a m m e d e v e l o p m e n t b y state
i n s t i t u t i o n as l o c a l g o v e r n m e n t s t o e n a b l e t h e m t o integrate a g e n d e r

I. Brownlie, 'The Relation of Municipal Law and International Law', m Principles of P u b l i c

I n t e r n a t i o n a l L a w (Oxford University Press Inc., United States, 2008) p.31.
* Non-self executing rights are not judicially enforceable constitutional rights, and can only
provide guidelines for legislation. See Tondo M e d i c a l centers Employees Association v. C o u r t of Appeals,
July 17,2007.
* People of the Philippines v. M a j i n o [1999, GR. No. 129112]
p e r s p e c t i v e i n t h e i r specific targets.

T h e n o r m a t i v e standard o n n o n - d i s c r i m i n a t i o n w h i c h p r o s c r i b e s t h e
m a k i n g o f d i s t i n c t i o n s t h a t h i n d e r access t o o r exercise o f r i g h t s b y w o m e n ,
a n d sets d o w n d i r e c t i v e s t o p l a c e F i l i p i n o w o m e n i n a c o m m o n p l a t f o r m
w i t h F i l i p i n o m e n , c a n be f o u n d i n t h e M a g n a C a r t a o f W o m e n .

U n d e r t h e M a g n a C a r t a , t h e state c o m m i t s t o r e f r a i n from t h e
c o m m i s s i o n o f acts t h a t are d i s c r i m i n a t o r y t o w o m e n , ^ a n d t h e c o r o l l a r y
d u t y t o ascertain t h a t t h i s p a r t i c u l a r g r o u p o f c l a i m h o l d e r s i s protected
from d i s c r i m i n a t o r y practices b y i n d i v i d u a l s a n d p r i v a t e i n s t i t u t i o n s . ^ T h i s
a n t i - d i s c r i m i n a t i o n l a w e n u m e r a t e s r i ^ t s o f w o m e n t o health,^
w h i c h i n c l u d e s access t o c o m p r e h e n s i v e h e a l t h s e r v i c e s , a n d h e a l t h
i n f o r m a t i o n a n d e d u c a t i o n . I n these p r o v i s i o n s , b o t h h e a l t h care
p r o g r a m m e s , f a c i l i t i e s , as w e l l as o p p o r t u n i t i e s t h a t c a n c o n t r i b u t e t o t h e
f o r m a t i o n o f a w o m a n ' s p e r s o n a l i t y are m a d e a v a i l a b l e t o w o m e n .

I t i s also w o r t h n o t i n g t h a t i n S e c t i o n 8 o f t h e M a g n a Carta, i t i s
stated t h a t " [ a ] l l r i g h t s i n t h e C o n s t i t u t i o n a n d t h o s e r i g h t s r e c o g n i z e d
under international instruments d u l y signed and ratified by the Philippines,
i n c o n s o n a n c e w i t h P h i l i p p i n e l a w , s h a l l be r i g h t s o f w o m e n u n d e r t h i s A c t
t o be e n j o y e d w i t h o u t d i s c r i m i n a t i o n . " " T h e p l a i n a n d o r d i n a r y m e a n i n g o f
t h i s s e c t i o n i s t h a t r i g h t s , i n c l u d i n g t h e n u m b e r a n d spacing o f c h i l d r e n
under the W o m e n ' s convention, the right t o health'^ and the right to a
decent s t a n d a r d o f l i v i n g u n d e r t h e C o v e n a n t o f E c o n o m i c , S o c i a l , C u l t u r a l
Rights,'^ full implementation o f the C E D A W by the Philippme government
as p a r t y t o t h e H a n o i P l a n o f Action'"* o f t h e A s s o c i a t i o n o f Southeast A s i a n
Nations, including sexual and reproductive health rights under the B e i j i n g
D e c l a r a t i o n a n d P l a t f o r m f o r A c t i o n , ' ^ c a n be exercised o r accessed b y a l l
Filipino women.

I n l i g h t o f t h e fact t h a t E O 0 0 3 predates t h e M a g n a C a r t a o f W o m e n ,
t h e C o m m i s s i o n o n H u m a n R i g h t s adopts t h e e v a l u a t i o n t h a t t h e C i t y o f
M a n i l a ' s l i a b i l i t y f o r a d i s c r i m i n a t o r y act before t h e a n t i - d i s c r i m i n a t i o n
l a w , issues from t h e P h i l i p p i n e ' s treaty c o m m i t m e n t u n d e r t h e C E D A W ,

Magna Carta of Women 2009 (Philippines) s 5.

* To ensure the effective unplementation of this rule, the law stipulates for time-bound policy
change, as well as programme development, designed to facilitate access to opportunities by women. The
Magna Carta also established an important legal mechanism to guarantee 'effective legal remedy' to
address violations and nonfeasance. This procedure which mandates investigation of complaints and
issuance of recommendations for appropriate remedial measures is exercised by the Commission on
Human Rights as Gender and Development Ombud.
' .46ovenote 7, s 17.
I b i d . , para. b.
" ^6ove note 7, s 8.
See UN Convention on Economic Social and Cultural Rights (Economic Rights) (ratified by the
Republic of the Philippines on June 7, 1974, and entered into force on Jan. 3, 1976) s 12.
" Ibid, s\l.
See Hanoi Plan of Action (ASEAN).
See Beijing Declaration and Platform for Action, para. 30.
 4

a n d its l i a b i l i t y u n d e r t h e M a g n a C a r t a o f W o m e n , c o m m e n c e s o n t h e e n t r y
i n t o f o r c e o f t h e latter.

Non-discrimination under tlie CEDAW

T h e C o n v e n t i o n o n the E l i m i n a t i o n o f A l l F o r m s o f Discrimination
A g a i n s t W o m e n entered i n t o force o n 0 3 S e p t e m b e r 1 9 8 1 . T h i s t r e a t y
p r o v i d e s f o r state o b l i g a t i o n s , specific r i g h t s o f w o m e n , a n d a s u p e r v i s o r y
c o m m i t t e e t o ascertain t h a t c o n t r a c t i n g parties abide b y t h e i r c o m m i t m e n t s .
I n a d d i t i o n t o t h e discussions a l r e a d y m a d e , t h e focus o f t h i s s e c t i o n s h a l l
be t h e state o b l i g a t i o n s a n d r i g h t s r e l e v a n t t o t h e contested E O 0 0 3 .

T h e P h i l i p p i n e s , b y r a t i f i c a t i o n b e c a m e a state p a r t y t o t h e C E D A W
o n 0 5 A u g u s t 1 9 8 1 . ' ^ A s such, i t b o u n d i t s e l f t o create l e g a l measures t o
p r o t e c t w o m e n ' s r i g h t s , p u n i s h d i s c r i m i n a t i o n , a n d i t s e l f r e f r a i n from
discriminating.'^

B y t h e issuance o f E O 0 0 3 , t h e C i t y o f M a n i l a , a n i n s t r u m e n t a l i t y
a n d essential e l e m e n t o f t h e state, c o m m i t t e d a clear breaches o f C E D A W
obligation. B y adopting an ordinance that limits the choice t o natural birth
c o n t r o l m e t h o d s , i t reneged o n t h e o b l i g a t i o n t o protect h e a l t h i n c l u d i n g t h e
s a f e g u a r d i n g o f t h e f u n c t i o n o f r e p r o d u c t i o n , ' * t o p r o v i d e h e a l t h care a n d
enable w o m e n t o access services r e l a t e d t o f a m i l y p l a n n i n g , ' ^ a n d t o a l l o w
w o m e n t o decide freely a n d r e s p o n s i b l y o n t h e n u m b e r a n d spacing o f
children.^^

Recommendations

I. T h e City Council o f M a n i l a should immediately revoke E O

0 0 3 , a n d ensure t h a t a r t i f i c i a l b i r t h c o n t r o l devices, i n c l u d i n g b i r t h c o n t r o l
p i l l s a n d i n j e c t i b l e s be m a d e a v a i l a b l e t o a l l a d u l t c i t i z e n s w h o are residents
w i t h i n its j u r i s d i c t i o n , i n h e a l t h centers a n d h o s p i t a l s .

II. T h e C i t y o f M a n i l a s h o u l d u n d e r t a k e t o encourage p r i v a t e
h e a l t h care p r o v i d e r s , h o s p i t a l s , a n d h e a l t h centers, t o m a k e a v a i l a b l e f o r
purchase, b i r t h c o n t r o l p i l l s , c o n d o m s , i n j e c t i b l e s , a n d i n t r a u t e r i n e d e v i c e .

The Magna Carta of Women took effect on September 15, 2009.

" 1. Adopt through legislation the principle of equality and non-discrimination; 2. Prohibit and
punish acts of discrimination; 3. Ensure through competent national tribunal and other public institutions
the effective protection of women against discrimination; 4. Refrain from engaging any act or practice
discrimination against women and to ensure that public authorities and mstitutions shall act in conformity
with this obligation; 5. Take all appropriate measures to eliminate discrimination against women by any
person, organisation, or enterprise.
See UN Convention on the Elunination of All Forms of Discrimination Against Women
(CEDAW) (ratified by the Republic of the Philippines on Aug. 5, 1981, and entered into force on Sept. 4,
1981) Art. 11 para. 1 subpara. f
" /fcW., Art. 12para. 1.
I b i d . , Art 16 para. 1 subpara. e.
r

II. T h e C i t y o f M a n i l a s h o u l d issue a n A p o l o g y t o t h e O s i l g r o u p ,
t o a l l w o m e n a n d m e n a l i k e w h o h a v e b e e n d e n i e d access t o f a c i l i t i e s a n d
services as a r e s u l t o f t h e E x e c u t i v e Order, a n d t o t h e c h i l d r e n o f t h e
f a m i l i e s affected.

IV. A l l local government units ( L G U s ) are encourage t o develop

or strengthen advocacy programmes o n reproductive a n d sexual health
r i g h t s , a n d m a k e a v a i l a b l e i n h e a l t h centers o r m u n i c i p a l h e a l t h c l i n i c s ,
b i r t h c o n t r o l p i l l s , c o n d o m s , injectibles, a n d i n t r a u t e r i n e device. L G U s a r e
likewise advised t o develop o r strengthen h u m a n rights education
particularly o n t h e rights o f w o m e n i n t h e C E D A W , f o r a l l their
constituents.

V. T h e regional trial court where the Petition o f the Osil Group

has b e e n r e m a n d e d , i s s t r o n g l y encouraged t o refer a n d consider t h e
o b l i g a t i o n s o f t h e state i n i n t e r n a t i o n a l treaties, a n d i t s c o m m i t m e n t s i n
regional cooperation particularly t o the A S E A N .

Issued this 7 t h day o f October, Q u e z o n City, t h e Philippines.

LORETTA ANN P. ROSALES

Chairperson

CECILIA RACHEL V. QUISUMBING MA. VICTORIA V. CARDONA

Commissioner