Pesigan vs. Angeles, 129 SCRA 174 (1984)

FACTS: Anselmo and Marcelo Pesigan transported in the evening of April 2, 1982 twenty-six carabaos and a calf from Camarines Sur with Batangas as their destination. They were provided with three certificates:
1) a health certificate from the provincial veterinarian,
2) permit to transfer/transport from the
provincial commander; and
3) three certificates of inspections.
In spite of the papers, the carabaos were confiscated by the provincial veterinarian and the town’s police station commander while passing through Camarines Norte. The confiscation was
based on EO No. 626-A which prohibits the transportation of carabaos and carabeef from one province to another.

ISSUE: Whether or not EO No. 626-A, providing for the confiscation and forfeiture by the government of carabaos transported from one province to another, dated October 25, 1980 is enforceable before publication in the Official Gazette on June 14, 1982

RULING: No. The said order is not enforceable against the Pesigans on April 2. 1982 because it is a penal regulation published more than two months later in the OG. It became effective only fifteen days thereafter as provided in Article 2 of the Civil Code and Sec-11 of the Revised Administrative Code.

The word “laws” in article 2 includes circulars and regulations which prescribe penalties. Publication is necessary to apprise the public of the contents of the regulations and make the said
penalties binding on the persons affected thereby.

Commonwealth Act No. 638 requires that all Presidential executive orders having general applicability should be published in the Official Gazette. It provides that “every order or
document which shall prescribe a penalty shall be deemed to have general applicability and legal effect. This applies to a violation of EO No. 626-A because its confiscation and forfeiture
provision or sanction makes it a penal statute. It results that they have cause of action for the recovery of the carabaos. The summary confiscation was not in order. The recipients of the
carabaos should return them to the Pesigans. However, they cannot transport the carabaos to Batangas because they are now bound by the said executive order. Neither can they
recover damages. Doctor Miranda and Zenerosa acted in good faith in ordering the forfeiture and dispersal of the carabaos.

Judgment: Order of dismissal and confiscation and dispersal of the carabaos, reversed and set aside. Respondents to restore carabaos, with the requisite documents, to petitioners for their
own disposal in Basud or Sipocot, Camarines Sur. No costs.

Important point: Publication is necessary to apprise the public of the contents of the regulations and make the said penalties binding on the persons affected hereby. Justice and fairness
dictate that the public must be informed of that provision by means of the publication on the Gazette.