Biriago v. Truth Commission

8/12/2019 Biriago v. Truth Commission

1/53

EN BANC

LOUIS BAROK C. BIRAOGO,Petitioner,

- versus -

THE PHILIPPINE TRUTH

COMMISSION OF 2010,

Respondent.

x - - - - - - - - - - - - - - - - - - - - - - - x

REP. EDCEL C. LAGMAN,

REP. RODOLFO B. ALBANO, JR.,

REP. SIMEON A. DATUMANONG,

and REP. ORLANDO B. FUA, SR.,

Petitioners,

- versus -

EXECUTIVE SECRETARY

PAUITO N. OCHOA, JR. !"#

DEPARTMENT OF BUDGET AND

MANAGEMENT SECRETARY

FLORENCIO B. ABAD,

Respondents.

G.R. N$. 1%2%&'

G.R. N$. 1%&0&(

Present:

CORONA, C.J.,

CARPIO,

CARPIO MORALES,

VELASCO, JR.,

NAC!RA,

LEONAR"O-"E CAS#RO,

$RION,PERAL#A,

$ERSAMIN,

"EL CAS#ILLO,

A$A",

VILLARAMA, JR.,

PERE%,

MEN"O%A, and

SERENO,JJ.

Pro&u'(ated:

"e)e&*er +,

x -------------------------------------------------------------------------------------- x


2/53

D E C I S I O N

MENDOZA, J.:

When the judiciary mediates to allocate constitutional

boundaries, it does not assert any superiority over the other

departments; it does not in reality nullify or invalidate an act of

the legislature, but only asserts the solemn and sacred

obligation assigned to it by the Constitution to determine

conflicting claims of authority under the Constitution and to

establish for the parties in an actual controversy the rights

which that instrument secures and guarantees to them.

--- Justi)e Jose P. Laure'/0

#1e ro'e o2 t1e Constitution )annot *e over'oo3ed. It is t1rou(1 t1e

Constitution t1at t1e 2unda&enta' po4ers o2 (overn&ent are esta*'is1ed,

'i&ited and de2ined, and *5 41i)1 t1ese po4ers are distri*uted a&on( t1e

severa' depart&ents./0#1e Constitution is t1e *asi) and para&ount 'a4 to

41i)1 a'' ot1er 'a4s &ust )on2or& and to 41i)1 a'' persons, in)'udin( t1e

1i(1est o22i)ia's o2 t1e 'and, &ust de2er.6/60Constitutiona' do)trines &ust

re&ain stead2ast no &atter 41at &a5 *e t1e tides o2 ti&e. It )annot *e

si&p'5 &ade to s4a5 and a))o&&odate t1e )a'' o2 situations and &u)1 &ore

tai'or itse'2 to t1e 41i&s and )apri)es o2 (overn&ent and t1e peop'e 41o run

it.7/70

1 [1]Angara v. The Electoral Commission, 63 Phil. 139, 158 (1936).2 [2]Bernas, The 1987 Constitution of the e!u"li# of the Phili!!ines$ % Co&&entar', 1996 e., !.

i*, #itin+ Miller, e#tures on the Constitution of the -nite tates 6/ (1893)$ 1 #h0art,The Po0ers of o*ern&ent 1 (1963).

3 [3]Cru, Philippine Political law, 22 e. !. 12./ [/] 4.


3/53

8or )onsideration *e2ore t1e Court are t4o )onso'idated )ases9/90*ot1

o2 41i)1 essentia''5 assai' t1e va'idit5 and )onstitutiona'it5 o2 Exe)utive

Order No. , dated Ju'5 6, , entit'ed Creating the Philippine ruth

Commission of !"#".$

#1e 2irst )ase is .R. No. ;;69, a spe)ia' )ivi' a)tion 2or pro1i*ition

instituted *5 petitioner Louis $irao(o %&iraogo'in 1is )apa)it5 as a )itiuino

III de)'ared 1is staun)1 )onde&nation o2 (ra2t and )orruption 4it1 1is

s'o(an, )ung walang corrupt, walang mahirap.$ #1e 8i'ipino peop'e,

)onvin)ed o2 1is sin)erit5 and o2 1is a*i'it5 to )arr5 out t1is no*'e o*?e)tive,5 [5] esolution ate %u+ust 2/, 21 #onsoliatin+ .. o. 192935 0ith .. o. 19336,

rollo,!!. 8788.6 [6]e#tion 1. The le+islati*e !o0er shall "e *este in the Con+ress of the Phili!!ines 0hi#h shall#onsist of a enate an a ouse of e!resentati*es, e#e!t to the etent reser*e to the !eo!le"' the !ro*ision on initiati*e an referenu&.

7 [7]Birao+o Petition, !. 5, rollo, !. 7.


4/53

)atapu'ted t1e (ood senator to t1e presiden)5.

#o trans2or& 1is )a&pai(n s'o(an into rea'it5, President A>uino 2ound

a need 2or a spe)ia' *od5 to investi(ate reported )ases o2 (ra2t and )orruption

a''e(ed'5 )o&&itted durin( t1e previous ad&inistration.

#1us, at t1e da4n o2 1is ad&inistration, t1e President on Ju'5 6,

, si(ned Exe)utive Order No. esta*'is1in( t1e Philippine ruth

Commission of !"#" %ruth Commission'. Pertinent provisions o2 said

exe)utive order read:

EXECUTIVE ORDER NO. 1

CREATING THE PHILIPPINE TRUTH COMMISSION OF 2010

WHEREAS, Articl XI, Scti!" 1 !# t$ 1%&' C!"(tit)ti!" !# t$P$ili**i"( (!l+"l "($ri"( t$ *ri"ci*l t$-t - *)lic !##ic i( - *)lictr)(t -"/ +-"/-t( t$-t *)lic !##icr( -"/ +*l!(, $! -r (r-"t(!# t$ *!*l, +)(t -t -ll ti+( -cc!)"t-l t! t$ l-ttr, (r t$+

it$ )t+!(t r(*!"(iilit, i"trit, l!-lt -"/ ##ici"c, -ct it$*-tri!ti(+ -"/ 3)(tic, -"/ l-/ +!/(t li(4

WHEREAS, c!rr)*ti!" i( -+!" t$ +!(t /(*ic-l -ct( !#/#i-"c !# t$i( *ri"ci*l -"/ "!t!ri!)( i!l-ti!" !# t$i( +-"/-t4

WHEREAS, c!rr)*ti!" i( -" il -"/ (c!)r $ic$ (ri!)(l-##ct( t$ *!litic-l, c!"!+ic, -"/ (!ci-l li# !# - "-ti!"4 i" - r (*ci-l

- it i"#lict( )"t!l/ +i(#!rt)" -"/ +i(r !" t$ *!!r, t$ +-ri"-li5/-"/ )"/r*riil/ (ct!r !# (!cit4

WHEREAS, c!rr)*ti!" i" t$ P$ili**i"( $-( r-c$/ r-l-r+i" ll(, -"/ )"/r+i"/ t$ *!*l6( tr)(t -"/ c!"#i/"c i" t$G!r"+"t -"/ it( i"(tit)ti!"(4

WHEREAS, t$r i( -" )r"t c-ll #!r t$ /tr+i"-ti!" !# t$tr)t$ r-r/i" crt-i" r*!rt( !# l-r (c-l r-#t -"/ c!rr)*ti!" i" t$!r"+"t -"/ t! *)t - cl!()r t! t$+ t$ #ili" !# t$ -**r!*ri-tc-(( --i"(t t$!( i"!l/, i# -rr-"t/, -"/ t! /tr !t$r( #r!+c!++itti" t$ il, r(t!r t$ *!*l6( #-it$ -"/ c!"#i/"c i" t$G!r"+"t -"/ i" t$ir *)lic (r-"t(4

WHEREAS, t$ Pr(i/"t6( -ttlcr /)ri" $i( c-+*-i" #!r t$Pr(i/"c i" t$ l-(t lcti!"( 7kung walang corrupt, walang mahirap8


5/53

9*r((( - (!l+" *l/ t$-t i# lct/, $ !)l/ "/ c!rr)*ti!" -"/ t$il it r/(4

WHEREAS, t$r i( - "/ #!r - (*-r-t !/ //ic-t/ (!ll t!i"(ti-ti" -"/ #i"/i" !)t t$ tr)t$ c!"cr"i" t$ r*!rt/ c-(( !#r-#t -"/ c!rr)*ti!" /)ri" t$ *ri!)( -/+i"i(tr-ti!", -"/ $ic$ ill

rc!++"/ t$ *r!(c)ti!" !# t$ !##"/r( -"/ (c)r 3)(tic #!r -ll4

WHEREAS, :!!; III, C$-*tr 10, Scti!"


6/53

c U*!" *r!*r r)(t !r r*r("t-ti!", !t-i" i"#!r+-ti!" -"//!c)+"t( #r!+ t$ S"-t -"/ t$ H!)( !# R*r("t-ti( rc!r/( !#i"(ti-ti!"( c!"/)ct/ c!++itt( t$r!# rl-ti" t! +-ttr( !r()3ct( i" i"(ti-t/ t$ C!++i((i!"4

/ U*!" *r!*r r)(t -"/ r*r("t-ti!", !t-i" i"#!r+-ti!" #r!+

t$ c!)rt(, i"cl)/i" t$ S-"/i-"--" -"/ t$ O##ic !# t$ C!)rtA/+i"i(tr-t!r, i"#!r+-ti!" !r /!c)+"t( i" r(*ct t! c!rr)*ti!" c-((#il/ it$ t$ S-"/i-"--" !r t$ r)l-r c!)rt(, -( t$ c-( +- 4

I"it !r ()*!"- it"((( -"/ t-; t$ir t(ti+!"i( -"/ #!r t$-t*)r*!(, -/+i"i(tr !-t$( !r -##ir+-ti!"( -( t$ c-( +- 4

# Rc!++"/, i" c-(( $r t$r i( - "/ t! )tili5 -" *r(!" -( -(t-t it"(( t! "()r t$-t t$ "/( !# 3)(tic #)ll (r/, t$-t ()c$*r(!" $! )-li#i( -( - (t-t it"(( )"/r t$ Ri(/ R)l( !# C!)rt!# t$ P$ili**i"( -/+itt/ #!r t$-t *)r*!(4

T)r" !r #r!+ ti+ t! ti+, #!r 9*/iti!)( *r!(c)ti!", t! t$-**r!*ri-t *r!(c)t!ri-l -)t$!riti(, +-"( !# - (*ci-l !r interimr*!rt -"/ rc!++"/-ti!", -ll i/"c !" c!rr)*ti!" !# *)lic !##icr(-"/ +*l!( -"/ t$ir *ri-t (ct!r c!@*ri"ci*-l(, -cc!+*lic( !r-cc((!ri(, i# -", $" i" t$ c!)r( !# it( i"(ti-ti!" t$ C!++i((i!"#i"/( t$-t t$r i( r-(!"-l r!)"/ t! li t$-t t$ -r li-l #!rr-#t -"/ c!rr)*ti!" )"/r *rti""t -**lic-l l-(4

$ C-ll )*!" -" !r"+"t i"(ti-ti !r *r!(c)t!ri-l -"c ()c$-( t$ D*-rt+"t !# )(tic !r -" !# t$ -"ci( )"/r it, -"/ t$Pr(i/"ti-l A"ti@Gr-#t C!++i((i!", #!r ()c$ -((i(t-"c -"/ c!!*r-ti!"-( it +- r)ir i" t$ /i(c$-r !# it( #)"cti!"( -"/ /)ti(4

i E"- !r c!"tr-ct t$ (ric( !# r(!)rc *r(!"(, *r!#((i!"-l(-"/ !t$r *r(!""l /tr+i"/ it -( "c((-r t! c-rr !)t it(+-"/-t4

3 Pr!+)l-t it( r)l( -"/ r)l-ti!"( !r r)l( !# *r!c/)r it /+("c((-r t! ##ctil -"/ ##ici"tl c-rr !)t t$ !3cti( !# t$i(E9c)ti Or/r -"/ t! "()r t$ !r/rl c!"/)ct !# it( i"(ti-ti!"(,*r!c/i"( -"/ $-ri"(, i"cl)/i" t$ *r("t-ti!" !# i/"c4

; E9rci( ()c$ !t$r -ct( i"ci/"t t! !r -r -**r!*ri-t -"/ "c((-ri" c!""cti!" it$ t$ !3cti( -"/ *)r*!(( !# t$i( Or/r.

SECTION


7/53

SECTION '. Ri$t t! C!)"(l !# Wit"(((R(!)rc Pr(!"(. ? 99 9.

SECTION &. Pr!tcti!" !# Wit"(((R(!)rc Pr(!"(. ? 9 9 9.

SECTION %. R#)(-l t! O S)*!"-, T-; O-t$ !r Gi

T(ti+!". ? A" !r"+"t !##ici-l !r *r(!""l $!, it$!)t l-#)l9c)(, #-il( t! -**-r )*!" ()*!"- i(()/ t$ C!++i((i!" !r $!,-**-ri" #!r t$ C!++i((i!" r#)(( t! t-; !-t$ !r -##ir+-ti!", it(ti+!" !r *r!/)c /!c)+"t( #!r i"(*cti!", $" r)ir/, ($-ll ()3ct t! -/+i"i(tr-ti /i(ci*li"-r -cti!". A" *ri-t *r(!" $! /!(t$ (-+ +- /-lt it$ i" -cc!r/-"c it$ l-.

SECTION 10. D)t t! E9t"/ A((i(t-"c t! t$ C!++i((i!". ?9 9 9.

SECTION 11. :)/t #!r t$ C!++i((i!". ? T$ O##ic !# t$Pr(i/"t ($-ll *r!i/ t$ "c((-r #)"/( #!r t$ C!++i((i!" t! "()r

t$-t it c-" 9rci( it( *!r(, 9c)t it( #)"cti!"(, -"/ *r#!r+ it( /)ti(-"/ r(*!"(iiliti( -( ##ctil, ##ici"tl, -"/ 9*/iti!)(l -(*!((il.

SECTION 12. O##ic. ? 9 9 9.

SECTION 1


8/53

SGD. :ENIGNO S. A=UINO III

: t$ Pr(i/"t>

SGD. PA=UITO N. OCHOA, R.

E9c)ti Scrt-r

Nature of the Truth Commission

As )an *e ('eaned 2ro& t1e a*ove->uoted provisions, t1e P1i'ippine

#rut1 Co&&ission %PC'is a &ere ad hoc*od5 2or&ed under t1e O22i)e o2

t1e President 4it1 t1e pri&ar5 tas3 to investi(ate reports o2 (ra2t and

)orruption )o&&itted *5 t1ird-'eve' pu*'i) o22i)ers and e&p'o5ees, t1eir )o-

prin)ipa's, a))o&p'i)es and a))essories durin( t1e previous ad&inistration,

and t1erea2ter to su*&it its 2indin( and re)o&&endations to t1e President,

Con(ress and t1e O&*uds&an. #1ou(1 it 1as *een des)ri*ed as an

@independent )o''e(ia' *od5, it is essentia''5 an entit5 4it1in t1e O22i)e o2

t1e President Proper and su*?e)t to 1is )ontro'. "ou*t'ess, it )onstitutes a

pu*'i) o22i)e, as an ad 1o) *od5 is one.B/B0

#o a))o&p'is1 its tas3, t1e P#C s1a'' 1ave a'' t1e po4ers o2 an

investi(ative *od5 under Se)tion 6+, C1apter ;, $oo3 I o2 t1e Ad&inistrative

Code o2 ;B+. It is not, 1o4ever, a >uasi-?udi)ia' *od5 as it )annot

ad?udi)ate, ar*itrate, reso've, sett'e, or render a4ards in disputes *et4een

)ontendin( parties. A'' it )an do is (at1er, )o''e)t and assess eviden)e o2

(ra2t and )orruption and &a3e re)o&&endations. It &a5 1ave su*poena

po4ers *ut it 1as no po4er to )ite peop'e in )onte&pt, &u)1 'ess order t1eir

arrest. A't1ou(1 it is a 2a)t-2indin( *od5, it )annot deter&ine 2ro& su)1

8 [8] Salvador Laurel v. Hon. Desierto, .. o. 1/5368, %!ril 12, 22, #itin+ .!. Mechem, ATreatise "n The Law o# Pu$lic "##ices and "##icers.


9/53

2a)ts i2 pro*a*'e )ause exists as to 4arrant t1e 2i'in( o2 an in2or&ation in our

)ourts o2 'a4. Need'ess to state, it )annot i&pose )ri&ina', )ivi' or

ad&inistrative pena'ties or san)tions.

#1e P#C is di22erent 2ro& t1e trut1 )o&&issions in ot1er )ountries

41i)1 1ave *een )reated as o22i)ia', transitor5 and non-?udi)ia' 2a)t-2indin(

*odies @to esta*'is1 t1e 2a)ts and )ontext o2 serious vio'ations o2 1u&an

ri(1ts or o2 internationa' 1u&anitarian 'a4 in a )ountr5s past. ;/;0#1e5 are

usua''5 esta*'is1ed *5 states e&er(in( 2ro& periods o2 interna' unrest, )ivi'

stri2e or aut1oritarianis& to serve as &e)1anis&s 2or transitiona' ?usti)e.

#rut1 )o&&issions 1ave *een des)ri*ed as *odies t1at s1are t1e

2o''o4in( )1ara)teristi)s: D t1e5 exa&ine on'5 past eventsF D t1e5

investi(ate patterns o2 a*use )o&&itted over a period o2 ti&e, as opposed to

a parti)u'ar eventF D6 t1e5 are te&porar5 *odies t1at 2inis1 t1eir 4or3 4it1

t1e su*&ission o2 a report )ontainin( )on)'usions and re)o&&endationsF

and D7 t1e5 are o22i)ia''5 san)tioned, aut1ori


10/53

Nure&*ur( and #o35o 4ar )ri&e tri*una's are exa&p'es o2 a retri*utor5 or

vindi)ator5 *od5 set up to tr5 and punis1 t1ose responsi*'e 2or )ri&es

a(ainst 1u&anit5. A 2or& o2 a re)on)i'iator5 tri*una' is t1e #rut1 and

Re)on)i'iation Co&&ission o2 Sout1 A2ri)a, t1e prin)ipa' 2un)tion o2 41i)1

4as to 1ea' t1e 4ounds o2 past vio'en)e and to prevent 2uture )on2'i)t *5

providin( a )at1arti) experien)e 2or vi)ti&s.

#1e P#C is a 2ar )r5 2ro& Sout1 A2ri)as &ode'. #1e 'atter p'a)ed

&ore e&p1asis on re)on)i'iation t1an on ?udi)ia' retri*ution, 41i'e t1e

&ar)1in( order o2 t1e P#C is t1e identi2i)ation and punis1&ent o2

perpetrators. As one 4riter/0puts it:

T$ !r/r r)l/ !)t rc!"cili-ti!". It tr-"(l-t/ t$Dr-c!"i-" c!/ (*ll/ !)t A)i"! i" $i( i"-))r-l (*c$> 7T!t$!( $! t-l; -!)t rc!"cili-ti!", i# t$ +-" t$-t t$ !)l/li; )( t! (i+*l #!rt -!)t t$ r!"( t$-t t$ $- c!++itt/i" t$ *-(t, $- t$i( t! (-> T$r c-" "! rc!"cili-ti!"it$!)t 3)(tic. W$" -ll! cri+( t! ! )"*)"i($/, i

c!"("t t! t$ir !cc)rri" !r -"/ !r --i".8

The Thrusts of the Petitions

$are'5 a &ont1 a2ter t1e issuan)e o2 Exe)utive Order No. , t1e

petitioners as3ed t1e Court to de)'are it un)onstitutiona' and to en?oin t1e

P#C 2ro& per2or&in( its 2un)tions. A perusa' o2 t1e ar(u&ents o2 t1epetitioners in *ot1 )ases s1o4s t1at t1e5 are essentia''5 t1e sa&e. #1e

petitioners-'e(is'ators su&&ari


11/53

Da E.O. No. vio'ates t1e separation o2 po4ers as it

arro(ates t1e po4er o2 t1e Con(ress to )reate a pu*'i) o22i)e

and appropriate 2unds 2or its operation.

D* #1e provision o2 $oo3 III, C1apter , Se)tion 6 o2

t1e Ad&inistrative Code o2 ;B+ )annot 'e(iti&iuasi-?udi)ia' po4ers dup'i)atin(, i2 not supersedin(, t1ose o2

t1e O22i)e o2 t1e O&*uds&an )reated under t1e ;B+

Constitution and t1e "epart&ent o2 Justi)e )reated under t1e

Ad&inistrative Code o2 ;B+.

Dd E.O. No. vio'ates t1e e>ua' prote)tion )'ause as it

se'e)tive'5 tar(ets 2or investi(ation and prose)ution o22i)ia's

and personne' o2 t1e previous ad&inistration as i2 )orruption is

t1eir pe)u'iar spe)ies even as it ex)'udes t1ose o2 t1e ot1erad&inistrations, past and present, 41o &a5 *e indi)ta*'e.

De #1e )reation o2 t1e @P1i'ippine #rut1 Co&&ission o2

vio'ates t1e )onsistent and (enera' internationa' pra)ti)e

o2 2our de)ades 41erein States )onstitute trut1 )o&&issions to

ex)'usive'5 investi(ate 1u&an ri(1ts vio'ations, 41i)1

)usto&ar5 pra)ti)e 2or&s part o2 t1e (enera''5 a))epted

prin)ip'es o2 internationa' 'a4 41i)1 t1e P1i'ippines is

&andated to ad1ere to pursuant to t1e "e)'aration o2 Prin)ip'es

ens1rined in t1e Constitution.

D2 #1e )reation o2 t1e @#rut1 Co&&ission is an exer)ise

in 2uti'it5, an adventure in partisan 1osti'it5, a 'aun)1in( pad 2or

tria'G)onvi)tion *5 pu*'i)it5 and a &ere popu'ist propa(anda to

&ista3en'5 i&press t1e peop'e t1at 4idespread povert5 4i''


12/53

a'to(et1er vanis1 i2 )orruption is e'i&inated 4it1out even

addressin( t1e ot1er &a?or )auses o2 povert5.

D( #1e &ere 2a)t t1at previous )o&&issions 4ere not

)onstitutiona''5 )1a''en(ed is o2 no &o&ent *e)ause neit1er

'a)1es nor estoppe' )an *ar an eventua' >uestion on t1e

)onstitutiona'it5 and va'idit5 o2 an exe)utive issuan)e or even a

statute.6/60

In t1eir Conso'idated Co&&ent,7/70 t1e respondents, t1rou(1 t1e

O22i)e o2 t1e So'i)itor enera' %*+', essentia''5 >uestioned t1e 'e(a'

standin( o2 petitioners and de2ended t1e assai'ed exe)utive order 4it1 t1e

2o''o4in( ar(u&ents:

0 E.O. No. does not arro(ate t1e po4ers o2 Con(ress to

)reate a pu*'i) o22i)e *e)ause t1e Presidents exe)utive po4er

and po4er o2 )ontro' ne)essari'5 in)'ude t1e in1erent po4er to

)ondu)t investi(ations to ensure t1at 'a4s are 2ait12u''5

exe)uted and t1at, in an5 event, t1e Constitution, Revised

Ad&inistrative Code o2 ;B+ DE.O. No. ;, 9/90Presidentia'

"e)ree DP.". No. 7==/=0 Das a&ended *5 P.". No. ++,

R.A. No. ;;+,+/+0and sett'ed ?urispruden)e t1at aut1oriuasi-?udi)ia' *od5 and its 2un)tions do

13 [13]a+&an Petition, !!. 552, rollo,!!. 586.1/ [1/]!ollo,!!. 111216.15 [15] Ather0ise @no0n as the %&inistrati*e Coe of 1987.16 [16]rantin+ Continuin+ %uthorit' To The Presient Af The Phili!!ines To eor+anie The

ational o*ern&ent.17 [17] Ather0ise @no0n as the eneral %!!ro!riations %#t of 21.


13/53

not dup'i)ate, supp'ant or erode t1e 'atters ?urisdi)tion.

70 #1e #rut1 Co&&ission does not vio'ate t1e e>ua'

prote)tion )'ause *e)ause it 4as va'id'5 )reated 2or 'auda*'e

purposes.

#1e OS t1en points to t1e )ontinued existen)e and va'idit5 o2 ot1er

exe)utive orders and presidentia' issuan)es )reatin( si&i'ar *odies to ?usti25

t1e )reation o2 t1e P#C su)1 as Presidentia' Co&p'aint and A)tion

Co&&ission %PCC' *5 President Ra&on $. Ma(sa5sa5, Presidentia'

Co&&ittee on Ad&inistrative Per2or&an)e E22i)ien)5 %PCP/'*5 President

Car'os P. ar)ia and Presidentia' A(en)5 on Re2or& and overn&ent

Operations %P0*'*5 President 8erdinand E. Mar)os.B/B0

8ro& t1e petitions, p'eadin(s, trans)ripts, and &e&oranda, t1e

2o''o4in( are t1e prin)ipa' issues to *e reso'ved:

. H1et1er or not t1e petitioners 1ave t1e 'e(a'

standin( to 2i'e t1eir respe)tive petitions and >uestion Exe)utiveOrder No. F

. H1et1er or not Exe)utive Order No. vio'ates

t1e prin)ip'e o2 separation o2 po4ers *5 usurpin( t1e po4ers o2

Con(ress to )reate and to appropriate 2unds 2or pu*'i) o22i)es,

a(en)ies and )o&&issionsF

6. H1et1er or not Exe)utive Order No. supp'ants t1e

po4ers o2 t1e O&*uds&an and t1e "OJF

18 [18] A Consoliate Co&&ent, !. 33, rollo,!. 153, #itin+ &% v. Sandigan$a%an, .. os.159657, ar#h 2, 21, 35/ C% 651, 66661.


14/53

7. H1et1er or not Exe)utive Order No. vio'ates t1e

e>ua' prote)tion )'auseF and

9. H1et1er or not petitioners are entit'ed to in?un)tive

re'ie2.

Essential requisites for judiial re!ie"

$e2ore pro)eedin( to reso've t1e issue o2 t1e )onstitutiona'it5 o2

Exe)utive Order No. , t1e Court needs to as)ertain 41et1er t1e re>uisites

2or a va'id exer)ise o2 its po4er o2 ?udi)ia' revie4 are present.

Li3e a'&ost a'' po4ers )on2erred *5 t1e Constitution, t1e po4er o2

?udi)ia' revie4 is su*?e)t to 'i&itations, to 4it: D t1ere &ust *e an a)tua'

)ase or )ontrovers5 )a''in( 2or t1e exer)ise o2 ?udi)ia' po4erF D t1e person

)1a''en(in( t1e a)t &ust 1ave t1e standin( to >uestion t1e va'idit5 o2 t1e

su*?e)t a)t or issuan)eF ot1er4ise stated, 1e &ust 1ave a persona' and

su*stantia' interest in t1e )ase su)1 t1at 1e 1as sustained, or 4i'' sustain,

dire)t in?ur5 as a resu't o2 its en2or)e&entF D6 t1e >uestion o2

)onstitutiona'it5 &ust *e raised at t1e ear'iest opportunit5F and D7 t1e issue

o2 )onstitutiona'it5 &ust *e t1e ver5 lis motao2 t1e )ase.;/;0

A&on( a'' t1ese 'i&itations, on'5 t1e 'e(a' standin( o2 t1e petitioners

1as *een put at issue.

19[19]Senate o# the Philippines v. Ermita , .. o. 169777, %!ril 2, 26, /88 C% 1, 35$ anrancisco v.

House o# !epresentatives, /6 Phil. 83, 8/2 (23).


15/53

#e$al %tandin$ of the Petitioners

#1e OS atta)3s t1e 'e(a' persona'it5 o2 t1e petitioners-'e(is'ators to

2i'e t1eir petition 2or 2ai'ure to de&onstrate t1eir persona' sta3e in t1e

out)o&e o2 t1e )ase. It ar(ues t1at t1e petitioners 1ave not s1o4n t1at t1e5

1ave sustained or are in dan(er o2 sustainin( an5 persona' in?ur5 attri*uta*'e

to t1e )reation o2 t1e P#C. Not )'ai&in( to *e t1e su*?e)t o2 t1e

)o&&issions investi(ations, petitioners 4i'' not sustain in?ur5 in its

)reation or as a resu't o2 its pro)eedin(s./0

#1e Court disa(rees 4it1 t1e OS in >uestionin( t1e 'e(a' standin( o2

t1e petitioners-'e(is'ators to assai' Exe)utive Order No. . Evident'5, t1eir

petition pri&ari'5 invo3es usurpation o2 t1e po4er o2 t1e Con(ress as a *od5

to 41i)1 t1e5 *e'on( as &e&*ers. #1is )ertain'5 ?usti2ies t1eir reso've to

ta3e t1e )ud(e's 2or Con(ress as an institution and present t1e )o&p'aints on

t1e usurpation o2 t1eir po4er and ri(1ts as &e&*ers o2 t1e 'e(is'ature *e2ore

t1e Court. As 1e'd inPhilippine Constitution ssociation v. /nri1ue2,/0

T! t$ 9t"t t$ *!r( !# C!"r(( -r i+*-ir/, (! i( t$*!r !# -c$ ++r t$r!#, (i"c $i( !##ic c!"#r( - ri$t t!*-rtici*-t i" t$ 9rci( !# t$ *!r( !# t$-t i"(tit)ti!".

A" -ct !# t$ E9c)ti $ic$ i"3)r( t$ i"(tit)ti!" !#C!"r(( c-)(( - /ri-ti )t "!"t$l(( ()(t-"ti-l i"3)r,$ic$ c-" )(ti!"/ - ++r !# C!"r((. I" ()c$ - c-(,-" ++r !# C!"r(( c-" $- - r(!rt t! t$ c!)rt(.

Indeed, 'e(is'ators 1ave a 'e(a' standin( to see to it t1at t1e

2 [2]A e&oranu&, !. 29, rollo, !. 3/8.21 [21].. o. 11315, %u+ust 19, 199/, 235 C% 56, 52.


16/53

prero(ative, po4ers and privi'e(es vested *5 t1e Constitution in t1eir o22i)e

re&ain invio'ate. #1us, t1e5 are a''o4ed to >uestion t1e va'idit5 o2 an5

o22i)ia' a)tion 41i)1, to t1eir &ind, in2rin(es on t1eir prero(atives as

'e(is'ators./0

Hit1 re(ard to $irao(o, t1e OS ar(ues t1at, as a taxpa5er, 1e 1as no

standin( to >uestion t1e )reation o2 t1e P#C and t1e *ud(et 2or its

operations.6/60 It e&p1asi


17/53

*-rt $! (t-"/( t! "#it/ !r i"3)r/ t$ 3)/+"t i" t$()it !r t$ *-rt "titl/ t! t$ --il( !# t$ ()it.8 S)cci"ctl *)t, t$*l-i"ti##6( (t-"/i" i( -(/ !" $i( !" ri$t t! t$ rli# (!)$t.

T$ /i##ic)lt !# /tr+i"i" locus standi -ri(( i" *)lic

()it(. Hr, t$ *l-i"ti## $! -((rt( - 7*)lic ri$t8 i" -((-ili" -"-ll/l ill-l !##ici-l -cti!", /!( (! -( - r*r("t-ti !# t$"r-l *)lic. H +- - *r(!" $! i( -##ct/ "! /i##r"tl#r!+ -" !t$r *r(!". H c!)l/ ()i" -( - 7(tr-"r,8 !r i" t$c-t!r !# - 7citi5",8 !r t-9*-r.8 I" it$r c-(, $ $-( t!-/)-tl ($! t$-t $ i( "titl/ t! (; 3)/ici-l *r!tcti!". I"!t$r !r/(, $ $-( t! +-; !)t - ()##ici"t i"tr(t i" t$i"/ic-ti!" !# t$ *)lic !r/r -"/ t$ (c)ri" !# rli# -( -7citi5"8 !r 7t-9*-r.

C-( l- i" +!(t 3)ri(/icti!"( "! -ll!( !t$ 7citi5"8 -"/7t-9*-r8 (t-"/i" i" *)lic -cti!"(. T$ /i(ti"cti!" -( #ir(t l-i//!" i"Beauchamp v. Silk, $r it -( $l/ t$-t t$ *l-i"ti## i" -t-9*-r6( ()it i( i" - /i##r"t c-t!r #r!+ t$ *l-i"ti## i" -citi5"6( ()it. I" t$ #!r+r, t$ *l-i"ti## i( -##ct/ t$9*"/it)r !# *)lic #)"/(, $il i" t$ l-ttr, $ i( )t t$ +ri"(tr)+"t !# t$ *)lic c!"cr". A( $l/ t$ N J!r;S)*r+ C!)rt i" People ex rel Case v. Collins> 7I" +-ttr !# +r*)lic ri$t, $!rKt$ *!*l -r t$ r-l *-rti(KIt i( -t l-(tt$ ri$t, i# "!t t$ /)t, !# r citi5" t! i"tr#r -"/ ( t$-t -*)lic !##"c *r!*rl *)r()/ -"/ *)"i($/, -"/ t$-t - *)licri-"c r+/i/.8 Wit$ r(*ct t! t-9*-r6( ()it(, Terr v.Jordan$l/ t$-t 7t$ ri$t !# - citi5" -"/ - t-9*-r t! +-i"t-i"

-" -cti!" i" c!)rt( t! r(tr-i" t$ )"l-#)l )( !# *)lic #)"/( t! $i(i"3)r c-""!t /"i/.8

H!r, t! *r"t 3)(t -!)t -" *r(!" #r!+ (;i"3)/ici-l i"tr#r"c i" -" !##ici-l *!lic !r -ct it$ $ic$ $/i(-r/ it$, -"/ t$)( $i"/r( t$ -ctiiti( !# !r"+"t-l-"ci( "-/ i" *)lic (ric, t$ U"it/ St-t S)*r+ C!)rtl-i/ /!" t$ +!r (tri""t @#/+)- /"8+ )i" Ex Parte Levitt,l-tr r-##ir+/ i" Tileston v. llman.T$ (-+ C!)rt r)l/ t$-t#!r - *ri-t i"/ii/)-l t! i"!; t$ 3)/ici-l *!r t! /tr+i"t$ -li/it !# -" 9c)ti !r li(l-ti -cti!", 6) 6$9 6!

6) 6! !/")# ! #/+)- /"8+ ! ! +)7 $5 6! !-/$", !"# / / "$55/-/)" 6! 6) 6! ! :)")+!7 /")+) -$$" $ !77 )3)+ $5 6)

437/-.

T$i( C!)rt -/!*t/ t$ #/+)- /"8+ )i" !)r 3)ri(/icti!".I"People v. !era, it $l/ t$-t t$ *r(!" $! i+*)"( t$ -li/it!# - (t-t)t +)(t $- @! 4)+$"!7 !"# 3!"/!7 /")+) /" 6) -!)-6 6! 6) 6! !/")#, $+ 9/77 !/" #/+)- /"8+ ! ! +)7 .


18/53

T$ !era/!ctri" -( )*$l/ i" - lit-" !# c-((, ()c$ -(, Custodiov. President o" the Senate, #anila $ace %orse Trainers&'ssociation v. (e la )uente, Pascual v. Secretar* o" Pu+lic orks-"/ 'nti-Chinese League o" the Philippines v. )elix. E+*$-((i"cl)//. Cit-ti!"( !+itt/

Not4it1standin(, t1e Court 'eans on t1e do)trine t1at @t1e ru'e on

standin( is a &atter o2 pro)edure, 1en)e, )an *e re'axed 2or nontraditiona'

p'ainti22s 'i3e ordinar5 )itiuestions are invo'ved, t1e standin( re>uire&ents &a5 *e

re'axed and a suit &a5 *e a''o4ed to prosper even 41ere t1ere is no dire)t

in?ur5 to t1e part5 )'ai&in( t1e ri(1t o2 ?udi)ia' revie4. In t1e 2irst

/mergency Powers Cases,+/+0ordinar5 )itiuestion t1e )onstitutiona'it5 o2 severa' exe)utive orders a't1ou(1 t1e5

1ad on'5 an indire)t and (enera' interest s1ared in )o&&on 4it1 t1e pu*'i).

#1e OS )'ai&s t1at t1e deter&inants o2 trans)endenta'

25[25]Social +ustice Societ% -S+S v. Dangerous Drugs /oard and Philippine Drug En#orcementAgenc%, ..

o. 15787, o*e&"er 3, 28, 57 C% /1, /21$ Tatad v. Secretar% o# the Departmento# Energ%,

3/6 Phil 321 (1997)$ De 0uia v. C"MELEC, .. o. 1/712, a' 6, 1992, 28 C% /2,/22.26 [26].. 132527, ul' 29, 25, /65 C% /7, 62.27 [27]8/ Phil. 368, 373 (19/9).


19/53

i&portan)eB/B0 'aid do4n in C0/& v. /0C and 4eralco;/;0 are non-

existent in t1is )ase. #1e Court, 1o4ever, 2inds reason in $irao(os

assertion t1at t1e petition )overs &atters o2 trans)endenta' i&portan)e to

?usti25 t1e exer)ise o2 ?urisdi)tion *5 t1e Court. #1ere are )onstitutiona'

issues in t1e petition 41i)1 deserve t1e attention o2 t1is Court in vie4 o2

t1eir seriousness, nove't5 and 4ei(1t as pre)edents. H1ere t1e issues are o2

trans)endenta' and para&ount i&portan)e not on'5 to t1e pu*'i) *ut a'so to

t1e $en)1 and t1e $ar, t1e5 s1ou'd *e reso'ved 2or t1e (uidan)e o2 a''.6/60

!ndou*ted'5, t1e 8i'ipino peop'e are &ore t1an interested to 3no4 t1e status

o2 t1e Presidents 2irst e22ort to *rin( a*out a pro&ised )1an(e to t1e

)ountr5. #1e Court ta3es )o(ni


20/53

)annot *e presu&ed6/60sin)e t1ere is no provision in t1e Constitution or an5

spe)i2i) 'a4 t1at aut1ori


21/53

#1e OS )ounters t1at t1ere is not1in( ex)'usive'5 'e(is'ative a*out

t1e )reation *5 t1e President o2 a 2a)t-2indin( *od5 su)1 as a trut1

)o&&ission. Pointin( to nu&erous o22i)es )reated *5 past presidents, it

ar(ues t1at t1e aut1orit5 o2 t1e President to )reate pu*'i) o22i)es 4it1in t1e

O22i)e o2 t1e President Proper 1as 'on( *een re)o(ni


22/53

and 'i)ensin( purposes7/70and in order to *e in2or&ed on &atters 41i)1 1e

is entit'ed to 3no4.76/760

#1e OS a'so )ites t1e re)ent )ase o2&anda v. /rmita,77/77041ere it

4as 1e'd t1at t1e President 1as t1e po4er to reor(ani


23/53

e)ono&5 or redundan)5 o2 2un)tions. #1ese point to situations 41ere a

*od5 or an o22i)e is a'read5 existent *ut a &odi2i)ation or a'teration t1ereo2

1as to *e e22e)ted. #1e )reation o2 an o22i)e is no41ere &entioned, &u)1

'ess envisioned in said provision. A))ordin('5, t1e ans4er to t1e >uestion is

in t1e ne(ative.

#o sa5 t1at t1e P#C is *orne out o2 a restru)turin( o2 t1e O22i)e o2 t1e

President under Se)tion 6 is a &isp'a)ed supposition, even in t1e p'ainest

&eanin( attri*uta*'e to t1e ter& @restru)ture an @a'teration o2 an existin(

stru)ture. Evident'5, t1e P#C 4as not part o2 t1e stru)ture o2 t1e O22i)e o2

t1e President prior to t1e ena)t&ent o2 Exe)utive Order No. . As 1e'd in

&u5lod ng )awaning /33& v. 6on. /7ecutive +ecretary,7=/7=0

:)t !# c!)r(, t$ li(t !# l-l -(i( -)t$!ri5i" t$ Pr(i/"tt! r!r-"i5 -" /*-rt+"t !r -"c i" t$ 9c)ti r-"c$/!( "!t $- t! "/ $r. W +)(t "!t l!( (i$t !# t$ r (!)rc!# t$ *!r ? t$-t $ic$ c!"(tit)t( -" 9*r(( r-"t !# *!r.U"/r Scti!"


24/53

In t1e sa&e vein, t1e )reation o2 t1e P#C is not ?usti2ied *5 t1e

Presidents po4er o2 )ontro'. Contro' is essentia''5 t1e po4er to a'ter or

&odi25 or nu''i25 or set aside 41at a su*ordinate o22i)er 1ad done in t1e

per2or&an)e o2 1is duties and to su*stitute t1e ?ud(&ent o2 t1e 2or&er 4it1

t1at o2 t1e 'atter.7+/7+0 C'ear'5, t1e po4er o2 )ontro' is entire'5 di22erent 2ro&

t1e po4er to )reate pu*'i) o22i)es. #1e 2or&er is in1erent in t1e Exe)utive,

41i'e t1e 'atter 2inds *asis 2ro& eit1er a va'id de'e(ation 2ro& Con(ress, or

1is in1erent dut5 to 2ait12u''5 exe)ute t1e 'a4s.

#1e >uestion is t1is, is t1ere a va'id de'e(ation o2 po4er 2ro&

Con(ress, e&po4erin( t1e President to )reate a pu*'i) o22i)e

A))ordin( to t1e OS, t1e po4er to )reate a trut1 )o&&ission

pursuant to t1e a*ove provision 2inds statutor5 *asis under P.". 7=, as

a&ended *5 P.". No. ++.7B/7B0 #1e said 'a4 (ranted t1e President t1e

)ontinuin( aut1orit5 to reor(ani


25/53

President Mar)os o2 t1e aut1orit5 to reor(ani N!t t$ $!l !# P.D. N!.


26/53

1B1, J!)r H!"!r.

ASSOCIATE USTICE CARPIO> T$ *!r !# t$ Pr(i/"t t!r!r-"i5 t$ "tir N-ti!"-lG!r"+"t i( /+/

r*-l/, -t l-(t, )*!" t$-/!*ti!" !# t$ 1%&'C!"(tit)ti!", c!rrct.

SOLICITOR GENERAL CADI> J(, J!)r H!"!r.9/90

H1i'e t1e po4er to )reate a trut1 )o&&ission )annot pass &uster on

t1e *asis o2 P.". No. 7= as a&ended *5 P.". No. ++, t1e )reation o2 t1e

P#C 2inds ?usti2i)ation under Se)tion +, Arti)'e VII o2 t1e Constitution,

i&posin( upon t1e President t1e dut5 to ensure t1at t1e 'a4s are 2ait12u''5

exe)uted. Se)tion + reads:

Scti!" 1'. T$ Pr(i/"t ($-ll $- c!"tr!l !# -ll t$9c)ti /*-rt+"t(, )r-)(, -"/ !##ic(. He shall ensure thatthe laws be faithfully executed.E+*$-(i( ()**li/.

As )orre)t'5 pointed out *5 t1e respondents, t1e a''o)ation o2 po4er in

t1e t1ree prin)ipa' *ran)1es o2 (overn&ent is a (rant o2 a'' po4ers in1erent

in t1e&. #1e Presidents po4er to )ondu)t investi(ations to aid 1i& in

ensurin( t1e 2ait12u' exe)ution o2 'a4s in t1is )ase, 2unda&enta' 'a4s on

pu*'i) a))ounta*i'it5 and transparen)5 is in1erent in t1e Presidents

po4ers as t1e C1ie2 Exe)utive. #1at t1e aut1orit5 o2 t1e President to )ondu)t

investi(ations and to )reate *odies to exe)ute t1is po4er is not exp'i)it'5

&entioned in t1e Constitution or in statutes does not &ean t1at 1e is *ere2t o2

su)1 aut1orit5.9/90 As exp'ained in t1e 'and&ar3 )ase o2 4arcos v.

5 [5]T, e!te&"er 28, 21, !!. 2527.51 [51]A e&oranu&, !. 37, rollo, !.356.


27/53

4anglapus99/90

9 9 9. T$ 1%&' C!"(tit)ti!", $!r, r!)$t -c; t$*r(i/"ti-l ((t+ !# !r"+"t -"/ r(t!r/ t$ (*-r-ti!" !#li(l-ti, 9c)ti -"/ 3)/ici-l *!r( t$ir -ct)-l /i(tri)ti!"-+!" t$r /i(ti"ct r-"c$( !# !r"+"t it$ *r!i(i!" #!rc$c;( -"/ -l-"c(.

It !)l/ "!t -cc)r-t, $!r, t! (t-t t$-t 9c)ti*!r i( t$ *!r t! "#!rc t$ l-(, #!r t$ Pr(i/"t i( $-/ !#(t-t -( ll -( $-/ !# !r"+"t -"/ $-tr *!r( i"$r i"()c$ *!(iti!"( *rt-i" t! t$ !##ic )"l(( t$ C!"(tit)ti!" it(l#it$$!l/( it. F)rt$r+!r, t$ C!"(tit)ti!" it(l# *r!i/( t$-t t$9c)ti!" !# t$ l-( i( !"l !" !# t$ *!r( !# t$ Pr(i/"t. It-l(! r-"t( t$ Pr(i/"t !t$r *!r( t$-t /! "!t i"!l t$9c)ti!" !# -" *r!i(i!" !# l-, .., $i( *!r !r t$ c!)"trQ(

#!ri" rl-ti!"(.

O" t$( *r+i((, $!l/ t$ i t$-t -lt$!)$ t$ 1%&'C!"(tit)ti!" i+*!(( li+it-ti!"( !" t$ 9rci( !# 4)-/5/- *!r(!# t$ Pr(i/"t, it +-i"t-i"( i"t-ct $-t i( tr-/iti!"-ll c!"(i/r/-( it$i" t$ (c!* !# 9c)ti *!r. C!r!ll-ril, t$ *!r( !#t$ Pr(i/"t c-""!t (-i/ t! li+it/ !"l t! t$ (*ci#ic*!r( ")+r-t/ i" t$ C!"(tit)ti!". I" !t$r !r/(, 9c)ti*!r i( +!r t$-" t$ ()+ !# (*ci#ic *!r( (! ")+r-t/.

It $-( " -/-"c/ t$-t $-tr *!r i"$r"t i" t$!r"+"t t$-t i( "it$r li(l-ti "!r 3)/ici-l $-( t! 9c)ti. 9 9 9.

Indeed, t1e Exe)utive is (iven &u)1 'ee4a5 in ensurin( t1at our 'a4s

are 2ait12u''5 exe)uted. As stated a*ove, t1e po4ers o2 t1e President are not

'i&ited to t1ose spe)i2i) po4ers under t1e Constitution.96/960 One o2 t1e

re)o(ni


28/53

2ait12u''5 exe)uted. #1us, inDe&artment of 'ealth !. Cam&osano,97/970 t1e

aut1orit5 o2 t1e President to issue Ad&inistrative Order No. ;B, )reatin( an

investi(ative )o&&ittee to 'oo3 into t1e ad&inistrative )1ar(es 2i'ed a(ainst

t1e e&p'o5ees o2 t1e "epart&ent o2 ea't1 2or t1e ano&a'ous pur)1ase o2

&edi)ines 4as up1e'd. In said )ase, it 4as ru'ed:

T6) C6/)5 E


29/53

o2 existin( 2unds a'read5 appropriated. A))ordin('5, t1ere is no usurpation

on t1e part o2 t1e Exe)utive o2 t1e po4er o2 Con(ress to appropriate 2unds.

8urt1er, t1ere is no need to spe)i25 t1e a&ount to *e ear&ar3ed 2or t1e

operation o2 t1e )o&&ission *e)ause, in t1e 4ords o2 t1e So'i)itor enera',

@41atever 2unds t1e Con(ress 1as provided 2or t1e O22i)e o2 t1e President

4i'' *e t1e ver5 sour)e o2 t1e 2unds 2or t1e )o&&ission.99/990 Moreover,

sin)e t1e a&ount t1at 4ou'd *e a''o)ated to t1e P#C s1a'' *e su*?e)t to

existin( auditin( ru'es and re(u'ations, t1ere is no i&propriet5 in t1e

2undin(.

Po"er of the Truth Commission to (n!esti$ate

#1e Presidents po4er to )ondu)t investi(ations to ensure t1at 'a4s

are 2ait12u''5 exe)uted is 4e'' re)o(ni


30/53

deter&ine >uestions o2 2a)t to 41i)1 t1e 'e(is'ative po'i)5 is to app'5 and to

de)ide in a))ordan)e 4it1 t1e standards 'aid do4n *5 'a4 itse'2 in en2or)in(

and ad&inisterin( t1e sa&e 'a4.9B/9B0In si&p'er ter&s, ?udi)ia' dis)retion is

invo'ved in t1e exer)ise o2 t1ese >uasi-?udi)ia' po4er, su)1 t1at it is

ex)'usive'5 vested in t1e ?udi)iar5 and &ust *e )'ear'5 aut1ori


31/53

0'd1udicate,0 c!++!"l !r *!*)l-rl )"/r(t!!/, +-"( t!-/3)/, -ritr-t, 3)/, /ci/, /tr+i", r(!l, r)l !", (ttl.T$ /icti!"-r /#i"( t$ tr+ -( t! (ttl #i"-ll t$ ri$t( -"//)ti( !# t$ *-rti( t! - c!)rt c-( !" t$ +rit( !# i(()( r-i(/> 99 t! *-(( 3)/+"t !"> (ttl 3)/ici-ll> 9 9 -ct -( 3)/. A"/

-/3)/ +-"( t! /ci/ !r r)l )*!" -( - 3)/ !r it$ 3)/ici-l!r )-(i@3)/ici-l *!r(> 9 9 t! --r/ !r r-"t 3)/ici-ll i" - c-( !#c!"tr!r( 9 9.

I" t$ l-l ("(, -/3)/ic-t +-"(> T! (ttl i" t$9rci( !# 3)/ici-l -)t$!rit. T! /tr+i" #i"-ll. S"!"+!)(it$ ad1udge i" it( (trict(t ("(4 -"/ -/3)/ +-"(> T! *-((!" 3)/ici-ll, t! /ci/, (ttl !r /cr, !r t! ("t"c !r c!"/+".9 9. I+*li( - 3)/ici-l /tr+i"-ti!" !# - #-ct, -"/ t$ "tr !# -3)/+"t. /Ita'i)s in)'uded. Citations O&itted0

8a)t-2indin( is not ad?udi)ation and it )annot *e 'i3ened to t1e ?udi)ia'

2un)tion o2 a )ourt o2 ?usti)e, or even a >uasi-?udi)ia' a(en)5 or o22i)e. #1e

2un)tion o2 re)eivin( eviden)e and as)ertainin( t1ere2ro& t1e 2a)ts o2 a

)ontrovers5 is not a ?udi)ia' 2un)tion. #o *e )onsidered as su)1, t1e a)t o2

re)eivin( eviden)e and arrivin( at 2a)tua' )on)'usions in a )ontrovers5 &ust

*e a))o&panied *5 t1e aut1orit5 o2 app'5in( t1e 'a4 to t1e 2a)tua'

)on)'usions to t1e end t1at t1e )ontrovers5 &a5 *e de)ided or reso'ved

aut1oritative'5, 2ina''5 and de2initive'5, su*?e)t to appea's or &odes o2

revie4 as &a5 *e provided *5 'a4.=/=0Even respondents t1e&se'ves ad&it

t1at t1e )o&&ission is *ere2t o2 an5 >uasi-?udi)ia' po4er.=/=0

Contrar5 to petitioners appre1ension, t1e P#C 4i'' not supp'ant t1e

O&*uds&an or t1e "OJ or erode t1eir respe)tive po4ers. I2 at a'', t1e

investi(ative 2un)tion o2 t1e )o&&ission 4i'' )o&p'e&ent t1ose o2 t1e t4o

o22i)es. As pointed out *5 t1e So'i)itor enera', t1e re)o&&endation to

prose)ute is *ut a )onse>uen)e o2 t1e overa'' tas3 o2 t1e )o&&ission to

6 [6]4. at /92.61 [61]T, e!te&"er 28, 21, !!. 39//;an A e&oranu&, !. 67, rollo, !. 339.


32/53

)ondu)t a 2a)t-2indin( investi(ation.=/=0 #1e a)tua' prose)ution o2

suspe)ted o22enders, &u)1 'ess ad?udi)ation on t1e &erits o2 t1e )1ar(es

a(ainst t1e&,=6/=60is )ertain'5 not a 2un)tion (iven to t1e )o&&ission. #1e

p1rase, @41en in t1e )ourse o2 its investi(ation, under Se)tion D(,

1i(1'i(1ts t1is 2a)t and (ives )reden)e to a )ontrar5 interpretation 2ro& t1at

o2 t1e petitioners. #1e 2un)tion o2 deter&inin( pro*a*'e )ause 2or t1e 2i'in(

o2 t1e appropriate )o&p'aints *e2ore t1e )ourts re&ains to *e 4it1 t1e "OJ

and t1e O&*uds&an.=7/=70

At an5 rate, t1e O&*uds&ans po4er to investi(ate under R.A. No.

=++ is not ex)'usive *ut is s1ared 4it1 ot1er si&i'ar'5 aut1ori


33/53

1 I"(ti-t -"/ *r!(c)t !" it( !" !r !" c!+*l-i"t -" *r(!", -" -ct !r !+i((i!" !# -" *)lic !##icr !r +*l!,!##ic !r -"c, $" ()c$ -ct !r !+i((i!" -**-r( t! ill-l,)"3)(t, i+*r!*r !r i"##ici"t. It $-( 4+/!+ 8+/#/-/$" !r

c-(( c!"i5-l t$ S-"/i-"--" -"/, i" t$ 9rci( !# it(*ri+-r 3)ri(/icti!", / ! !;) $*)+, ! !" !:), 5+$ !"/"*)/:!$+ !:)"- $5 :$*)+")", 6) /"*)/:!/$" $5 -6 -!).

E+*$-(( ()**li/

#1e a)t o2 investi(ation *5 t1e O&*uds&an as enun)iated a*ove

)onte&p'ates t1e )ondu)t o2 a pre'i&inar5 investi(ation or t1e deter&ination

o2 t1e existen)e o2 pro*a*'e )ause. #1is is )ate(ori)a''5 out o2 t1e P#Cs

sp1ere o2 2un)tions. Its po4er to investi(ate is 'i&ited to o*tainin( 2a)ts so

t1at it )an advise and (uide t1e President in t1e per2or&an)e o2 1is duties

re'ative to t1e exe)ution and en2or)e&ent o2 t1e 'a4s o2 t1e 'and. In t1is

re(ard, t1e P#C )o&&its no a)t o2 usurpation o2 t1e O&*uds&ans

pri&ordia' duties.

#1e sa&e 1o'ds true 4it1 respe)t to t1e "OJ. Its aut1orit5 under

Se)tion 6 D, C1apter , #it'e III, $oo3 IV in t1e Revised Ad&inistrative

Code is *5 no &eans ex)'usive and, t1us, )an *e s1ared 4it1 a *od5 'i3e4ise

tas3ed to investi(ate t1e )o&&ission o2 )ri&es.

8ina''5, no41ere in Exe)utive Order No. )an it *e in2erred t1at t1e

2indin(s o2 t1e P#C are to *e a))orded )on)'usiveness. Mu)1 'i3e its

prede)essors, t1e "avide Co&&ission, t1e 8e'i)iano Co&&ission and t1e

%enarosa Co&&ission, its 2indin(s 4ou'd, at *est, *e re)o&&endator5 in

nature. And *ein( so, t1e O&*uds&an and t1e "OJ 1ave a 4ider de(ree o2

'atitude to de)ide 41et1er or not to re?e)t t1e re)o&&endation. #1ese

o22i)es, t1ere2ore, are not deprived o2 t1eir &andated duties *ut 4i'' instead


34/53

*e aided *5 t1e reports o2 t1e P#C 2or possi*'e indi)t&ents 2or vio'ations o2

(ra2t 'a4s.

)iolation of the Equal Protetion Clause

A't1ou(1 t1e purpose o2 t1e #rut1 Co&&ission 2a''s 4it1in t1e

investi(ative po4er o2 t1e President, t1e Court 2inds di22i)u't5 in up1o'din(

t1e )onstitutiona'it5 o2 Exe)utive Order No. in vie4 o2 its apparent

trans(ression o2 t1e e>ua' prote)tion )'ause ens1rined in Se)tion , Arti)'e

III D$i'' o2 Ri(1ts o2 t1e ;B+ Constitution. Se)tion reads:

Scti!" 1. N! *r(!" ($-ll /*ri/ !# li#, lirt, !r*r!*rt it$!)t /) *r!c(( !# l-, "$+ 6!77 !" 4)+$" 3) #)"/)#6) )?!7 4+$)-/$" $5 6) 7!9.

#1e petitioners assai' Exe)utive Order No. *e)ause it is vio'ative o2

t1is )onstitutiona' sa2e(uard. #1e5 )ontend t1at it does not app'5 e>ua''5 to

a'' &e&*ers o2 t1e sa&e )'ass su)1 t1at t1e intent o2 sin('in( out t1e@previous ad&inistration as its so'e o*?e)t &a3es t1e P#C an @adventure in

partisan 1osti'it5.==/==0 #1us, in order to *e a))orded 4it1 va'idit5, t1e

)o&&ission &ust a'so )over reports o2 (ra2t and )orruption in virtua''5 a''

ad&inistrations previous to t1at o2 2or&er President Arro5o.=+/=+0

#1e petitioners ar(ue t1at t1e sear)1 2or trut1 *e1ind t1e reported

)ases o2 (ra2t and )orruption &ust en)o&pass a)ts )o&&itted not on'5

durin( t1e ad&inistration o2 2or&er President Arro5o *ut a'so durin( prior

ad&inistrations 41ere t1e @sa&e &a(nitude o2 )ontroversies and

66 [66]a+&an Petition, !!. /3, 552, rollo, !!. 51, 56.67 [67]a+&an e&oranu&, .. 19336, !!. 2829, rollo, !!. 3/73/8.


35/53

ano&a'ies=B/=B04ere reported to 1ave *een )o&&itted a(ainst t1e 8i'ipino

peop'e. #1e5 assai' t1e )'assi2i)ation 2or&u'ated *5 t1e respondents as it

does not 2a'' under t1e re)o(niua' 2or)e.+/+0

P$//$" $5 +)4$"#)"

A))ordin( to respondents, 41i'e Exe)utive Order No. identi2ies t1e

@previous ad&inistration as t1e initia' su*?e)t o2 t1e investi(ation,

2o''o4in( Se)tion + t1ereo2, t1e P#C 4i'' not )on2ine itse'2 to )ases o2 'ar(e

s)a'e (ra2t and )orruption so'e'5 durin( t1e said ad&inistration.+/+0

Assu&in( arguendo t1at t1e )o&&ission 4ou'd )on2ine its pro)eedin(s to

o22i)ia's o2 t1e previous ad&inistration, t1e petitioners ar(ue t1at no o22ense

is )o&&itted a(ainst t1e e>ua' prote)tion )'ause 2or @t1e se(re(ation o2 t1e

transa)tions o2 pu*'i) o22i)ers durin( t1e previous ad&inistration as possi*'e

su*?e)ts o2 investi(ation is a va'id )'assi2i)ation *ased on su*stantia'distin)tions and is (er&ane to t1e evi's 41i)1 t1e Exe)utive Order see3s to

68 [68]a+&an Petition, !. 31, rollo, !. 39.69 [69]4. at 2829, rollo, !!. 3637.7 [7]4. at 29, rollo, !. 37.71 [71]A e&oranu&, !. 885 rollo, !. /7.


36/53

)orre)t.+/+0 #o distin(uis1 t1e Arro5o ad&inistration 2ro& past

ad&inistrations, it re)ited t1e 2o''o4in(:

irst. E.O. No. 4as issued in vie4 o2 widespread

reports of large scale graft and corruption in t1e previous

ad&inistration 41i)1 1ave eroded pu*'i) )on2iden)e in pu*'i)

institutions. #1ere is, t1ere2ore, an ur(ent )a'' 2or t1e

deter&ination o2 t1e trut1 re(ardin( )ertain reports o2 'ar(e

s)a'e (ra2t and )orruption in t1e (overn&ent and to put a

)'osure to t1e& *5 t1e 2i'in( o2 t1e appropriate )ases a(ainst

t1ose invo'ved, i2 4arranted, and to deter ot1ers 2ro&

)o&&ittin( t1e evi', restore t1e peop'es 2ait1 and )on2iden)e in

t1e overn&ent and in t1eir pu*'i) servants.

+econd.#1e se(re(ation o2 t1e pre)edin( ad&inistration

as t1e o*?e)t o2 2a)t-2indin( is 4arranted *5 t1e rea'it5 t1at

un'i3e 4it1 ad&inistrations 'on( (one, t1e )urrent

ad&inistration 4i'' &ost 'i3e'5 *ear t1e i&&ediate )onse>uen)e

o2 t1e po'i)ies o2 t1e previous ad&inistration.

hird. #1e )'assi2i)ation o2 t1e previous ad&inistration

as a separate )'ass 2or investi(ation 'ies in t1e rea'it5 t1at t1e

evidence o2 possi*'e )ri&ina' a)tivit5, t1e eviden)e t1at )ou'd

'ead to re)over5 o2 pu*'i) &onies i''e(a''5 dissipated, t1e po'i)5

'essons to *e 'earned to ensure t1at anti-)orruption 'a4s are

2ait12u''5 exe)uted, are more easily established in t1e re(i&e

t1at i&&ediate'5 pre)ede t1e )urrent ad&inistration.

ourth. Man5 ad&inistrations su*?e)t t1e transa)tions o2

t1eir prede)essors to investi(ations to provide )'osure to issues

t1at are pivota' to nationa' 'i2e or even as a routine &easure o2

due di'i(en)e and (ood 1ouse3eepin( *5 a nas)ent

ad&inistration 'i3e t1e Presidentia' Co&&ission on oodovern&ent DPC, )reated *5 t1e 'ate President Corauino under Exe)utive Order No. to pursue t1e re)over5 o2

i''-(otten 4ea't1 o2 1er prede)essor 2or&er President 8erdinand

Mar)os and 1is )ronies, and t1e +aguisag Co&&ission )reated

*5 2or&er President Josep1 Estrada under Ad&inistrative Order

72 [72]A Consoliate Co&&ent. !. 68,rollo, !. 188.


37/53

No, 96, to 2or& an ad-1o) and independent )itiuires

pu*'i) *odies and institutions to treat si&i'ar'5 situated individua's in a

si&i'ar &anner.+=/+=0@#1e purpose o2 t1e e>ua' prote)tion )'ause is to se)ure

ever5 person 4it1in a states ?urisdi)tion a(ainst intentiona' and ar*itrar5

73 [73]A e&oranu&, !!. 993, rollo,!!. /9/12.7/ [7/]The Philippine +udges Association v. Hon. Pardo, .. o. 15371, o*e&"er 11, 1993, 227

C% 73, 711.75 [75]4. at 712, #itin+ )chong v. Hernande2, 11 Phil. 1155 (1957)$ Sison, +r. v. Ancheta, o.

59/31, ul' 25, 198/, 13 C% 65/$ Association o# Small Landowners in the Philippines v.Secretar% o# Agrarian !e#orm, .. o. 78/2, ul' 1/, 1989, 175 C% 3/3, 375.

76 [76]0uino v. Sen'ows'i,5/ E 3 15 (2. Cir. 1995) #ite in %&. ur, 2, Gol. 16 ("), !. 32.


38/53

dis)ri&ination, 41et1er o))asioned *5 t1e express ter&s o2 a statue or *5 its

i&proper exe)ution t1rou(1 t1e states du'5 )onstituted aut1orities.++/++0@In

ot1er 4ords, t1e )on)ept o2 e>ua' ?usti)e under t1e 'a4 re>uires t1e state to

(overn i&partia''5, and it &a5 not dra4 distin)tions *et4een individua's

so'e'5 on di22eren)es t1at are irre'evant to a 'e(iti&ate (overn&enta'

o*?e)tive.+B/+B0

#1e e>ua' prote)tion )'ause is ai&ed at a'' o22i)ia' state a)tions, not

?ust t1ose o2 t1e 'e(is'ature.+;/+;0Its in1i*itions )over a'' t1e depart&ents o2

t1e (overn&ent in)'udin( t1e po'iti)a' and exe)utive depart&ents, and

extend to a'' a)tions o2 a state den5in( e>ua' prote)tion o2 t1e 'a4s, t1rou(1

41atever a(en)5 or 41atever (uise is ta3en.B/B0

It, 1o4ever, does not re>uire t1e universa' app'i)ation o2 t1e 'a4s to

a'' persons or t1in(s 4it1out distin)tion. H1at it si&p'5 re>uires is e>ua'it5

a&on( e>ua's as deter&ined a))ordin( to a va'id )'assi2i)ation. Indeed, t1e

e>ua' prote)tion )'ause per&its )'assi2i)ation. Su)1 )'assi2i)ation, 1o4ever,

to *e va'id &ust pass t1e test o2 reasona*leness. #1e test 1as 2our re>uisites:

D #1e )'assi2i)ation rests on su*stantia' distin)tionsF D It is (er&ane to

t1e purpose o2 t1e 'a4F D6 It is not 'i&ited to existin( )onditions on'5F and

77 [77]Edward 3alves, )nc. v. 6a'e Countr%, 3/3 .C. /26 #ite in %&. ur. 2, Gol. 16 ("), !. 33.78 [78]Lehr v. !o$ertson, /63 - 2/8, 13 #ite in %&. ur. 2, Gol. 16 ("), !. 33.79 [79]ee Colum$us /d. o# Ed. v. Penic',//3 - //9 #ite %&. ur. 2, Gol. 16 ("), !!. 316317.8 [8]ee Lom$ard v. State o# La.,373 - 267 #ite in %&. ur. 2, Gol. 16 ("), !. 316.


39/53

D7 It app'ies e>ua''5 to a'' &e&*ers o2 t1e sa&e )'ass.B/B0

@Super2i)ia' di22eren)es do not &a3e 2or a va'id )'assi2i)ation.B/B0

8or a )'assi2i)ation to &eet t1e re>uire&ents o2 )onstitutiona'it5, it

&ust in)'ude or e&*ra)e a'' persons 41o natura''5 *e'on( to t1e )'ass.B6/B60

@#1e )'assi2i)ation 4i'' *e re(arded as inva'id i2 a'' t1e &e&*ers o2 t1e )'ass

are not si&i'ar'5 treated, *ot1 as to ri(1ts )on2erred and o*'i(ations i&posed.

It is not ne)essar5 t1at t1e )'assi2i)ation *e &ade 4it1 a*so'ute s5&&etr5, in

t1e sense t1at t1e &e&*ers o2 t1e )'ass s1ou'd possess t1e sa&e

)1ara)teristi)s in e>ua' de(ree. Su*stantia' si&i'arit5 4i'' su22i)eF and as

'on( as t1is is a)1ieved, a'' t1ose )overed *5 t1e )'assi2i)ation are to *e

treated e>ua''5. #1e &ere 2a)t t1at an individua' *e'on(in( to a )'ass di22ers

2ro& t1e ot1er &e&*ers, as 'on( as t1at )'ass is su*stantia''5 distin(uis1a*'e

2ro& a'' ot1ers, does not ?usti25 t1e non-app'i)ation o2 t1e 'a4 to 1i&.B7/B70

#1e )'assi2i)ation &ust not *e *ased on existin( )ir)u&stan)es on'5,

or so )onstituted as to pre)'ude addition to t1e nu&*er in)'uded in t1e )'ass.

It &ust *e o2 su)1 a nature as to e&*ra)e a'' t1ose 41o &a5 t1erea2ter *e in

si&i'ar )ir)u&stan)es and )onditions. It &ust not 'eave out or

@underin)'ude t1ose t1at s1ou'd ot1er4ise 2a'' into a )ertain )'assi2i)ation.

As e'u)idated in nionB9/B90 and

reiterated in a 'on( 'ine o2 )ases,B=/B=0

81 [81]/eltran v. Secretar% o# Health, 512 Phil 56, 583 (25).82 [82]Cru, Constitutional a0, 23 e., !. 128.83 [83]McErlain v. Ta%lor, 27 4n. 2/ #ite in %&. ur. 2, Gol. 16 ("), !. 367.8/ [8/]Cru, Constitutional a0, 23 e., !!. 135136.85 [85]o. 252/6, 59 C% 5/, 7778 (e!te&"er 12, 197/).86 [86] /asa v. ederacion "$rera de la )ndustria Ta$a*uera % "tros Tra$a7adores de ilipinas

-")TA,o. 27113, o*e&"er 19, 197/, 61 C% 93, 11111$ Anuncension v. 4ationalLa$or &nion, o. 2697, o*e&"er 29, 1977, 8 C% 35, 372373$ 3illegas v. Hiu ChiongTsai Pao Ho, o. 296/6, o*e&"er 1, 1978, 86 C% 27, 275$ Dumlao v. Comelec, o. 522/5, anuar' 22, 198, 95 C% 392, //$ Ceni2a v. Comelec, o. 523/, anuar' 28,


40/53

T$ )-r-"t !# )-l *r!tcti!" !# t$ l-( i( "!t - )-r-"t!# )-lit i" t$ -**lic-ti!" !# t$ l-( )*!" -ll citi5"( !# t$(t-t. It i( "!t, t$r#!r, - r)ir+"t, i" !r/r t! -!i/ t$c!"(tit)ti!"-l *r!$iiti!" --i"(t i")-lit, t$-t r +-",!+-" -"/ c$il/ ($!)l/ -##ct/ -li; - (t-t)t. E)-lit !#

!*r-ti!" !# (t-t)t( /!( "!t +-" i"/i(cri+i"-t !*r-ti!" !"*r(!"( +rl -( ()c$, )t !" *r(!"( -cc!r/i" t! t$circ)+(t-"c( ()rr!)"/i" t$+. It )-r-"t( )-lit, "!ti/"tit !# ri$t(. T$ C!"(tit)ti!" /!( "!t r)ir t$-t t$i"($ic$ -r /i##r"t i" #-ct tr-t/ i" l- -( t$!)$ t$ r t$(-+. T$ )-l *r!tcti!" cl-)( /!( "!t #!ri/ /i(cri+i"-ti!" -(t! t$i"( t$-t -r /i##r"t. It /!( "!t *r!$iit li(l-ti!" $ic$ i(li+it/ it$r i" t$ !3ct t! $ic$ it i( /irct/ !r t$ trrit!rit$i" $ic$ it i( t! !*r-t.

T$ )-l *r!tcti!" !# t$ l-( cl-)( !# t$ C!"(tit)ti!"-ll!( cl-((i#ic-ti!". Cl-((i#ic-ti!" i" l-, -( i" t$ !t$r/*-rt+"t( !# ;"!l/ !r *r-ctic, i( t$ r!)*i" !# t$i"( i"(*c)l-ti!" !r *r-ctic c-)( t$ -r it$ !" -"!t$r i"crt-i" *-rtic)l-r(. A l- i( "!t i"-li/ c-)( !# (i+*l i")-lit.T$ r i/- !# cl-((i#ic-ti!" i( t$-t !# i")-lit, (! t$-t it !(it$!)t (-i" t$-t t$ +r #-ct !# i")-lit i" "! +-""r/tr+i"( t$ +-ttr !# c!"(tit)ti!"-lit. All t$-t i( r)ir/ !# --li/ cl-((i#ic-ti!" i( t$-t it r-(!"-l, $ic$ +-"( t$-t t$cl-((i#ic-ti!" ($!)l/ -(/ !" ()(t-"ti-l /i(ti"cti!"( $ic$+-; #!r r-l /i##r"c(, t$-t it +)(t r+-" t! t$ *)r*!( !#t$ l-4 t$-t it +)(t "!t li+it/ t! 9i(ti" c!"/iti!"( !"l4 -"/t$-t it +)(t -**l )-ll t! -c$ ++r !# t$ cl-((. T$i( C!)rt

$-( $l/ t$-t t$ (t-"/-r/ i( (-ti(#i/ i# t$ cl-((i#ic-ti!" !r/i(ti"cti!" i( -(/ !" - r-(!"-l #!)"/-ti!" !r r-ti!"-l -(i( -"/i( "!t *-l*-l -ritr-r. Cit-ti!"( !+itt/

App'5in( t1ese pre)epts to t1is )ase, Exe)utive Order No. s1ou'd *e

stru)3 do4n as vio'ative o2 t1e e>ua' prote)tion )'ause. #1e )'ear &andate

o2 t1e envisioned trut1 )o&&ission is to investi(ate and 2ind out t1e trut1

@)on)ernin( t1e reported )ases o2 (ra2t and )orruption durin( t1eprevious

198, 95 C% 763, 772773$ Himagan v. People,.. o. 113811, A#to"er 7, 199/, 237C% 538$ The Con#erence o# Maritime Manning Agencies, )nc. v. P"EA, .. o. 11/71/,

%!ril 21, 1995, 2/3 C% 666, 677$ +MM Promotion and Management, )nc. v. Court o# Appeals,.. o. 1295, %u+ust 5, 1996, 26 C% 319, 331H332$ an Tiu v. Court o# Appeals, ..o. 127/1, anuar' 2, 1999, 31 C% 278, 288289. See also )chong v. Hernande2,o. 7995, 11 Phil. 1155 (1957)$ 3era v. Cuevas, os. 336939/, a' 31, 1979, 9 C% 379,388$ an Tolentino v. Secretar% o# inance, .. os. 115/55, 115525, 1155/3, 1155//,11575/, 115781, 115852, 115873, an 115931, %u+ust 25, 199/, 235 C% 63, 68/.


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administration$?@+- on'5. #1e intent to sin('e out t1e previous

ad&inistration is p'ain, patent and &ani2est. Mention o2 it 1as *een &ade in

at 'east t1ree portions o2 t1e >uestioned exe)utive order. Spe)i2i)a''5, t1ese

are:

WHEREAS, t$r i( - "/ #!r - (*-r-t !/ //ic-t/ (!ll t!i"(ti-ti" -"/ #i"/i" !)t t$ tr)t$ c!"cr"i" t$ r*!rt/c-(( !# r-#t -"/ c!rr)*ti!" /)ri" t$ 4+)*/$ !#/"/+!/$",-"/ $ic$ ill rc!++"/ t$ *r!(c)ti!" !# t$ !##"/r( -"/(c)r 3)(tic #!r -ll4

SECTION 1. Cr-ti!" !# - C!++i((i!". ? T$r i( $r cr-t/t$ PHILIPPINE TRUTH COMMISSION, $ri"-#tr r#rr/ t! -(

t$ 7COMMISSION,8 $ic$ ($-ll *ri+-ril (; -"/ #i"/ t$ tr)t$!", -"/ t!-r/ t$i( "/, i"(ti-t r*!rt( !# r-#t -"/ c!rr)*ti!"!# ()c$ (c-l -"/ +-"it)/ t$-t ($!c; -"/ !##"/ t$ +!r-l -"/t$ic-l ("(iiliti( !# t$ *!*l, c!++itt/ *)lic !##icr( -"/+*l!(, t$ir c!@*ri"ci*-l(, -cc!+*lic( -"/ -cc((!ri( #r!+t$ *ri-t (ct!r, i# -", /)ri" t$ 4+)*/$ !#/"/+!/$"4 -"/t$r-#tr rc!++"/ t$ -**r!*ri-t -cti!" !r +-()r t! t-;" t$r!" t! "()r t$-t t$ #)ll +-()r !# 3)(tic ($-ll (r/ it$!)t #-r !r #-!r.

SECTION 2. P!r( -"/ F)"cti!"(. ? T$ C!++i((i!", $ic$ ($-ll$- -ll t$ *!r( !# -" i"(ti-ti !/ )"/r Scti!" ua' prote)tion )'ause )annot san)tion.

Su)1 dis)ri&inatin( di22erentiation )'ear'5 rever*erates to 'a*e' t1e

87 [87]7thIhereas #lause, >e#uti*e Arer o. 1.


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)o&&ission as a ve1i)'e 2or vindi)tiveness and se'e)tive retri*ution.

#1ou(1 t1e OS enu&erates severa' di22eren)es *et4een t1e Arro5o

ad&inistration and ot1er past ad&inistrations, t1ese distin)tions are notsu*stantia' enou(1 to &erit t1e restri)tion o2 t1e investi(ation to t1e

@previous ad&inistration on'5. #1e reports o2 4idespread )orruption in t1e

Arro5o ad&inistration )annot *e ta3en as *asis 2or distin(uis1in( said

ad&inistration 2ro& ear'ier ad&inistrations 41i)1 4ere a'so *'e&is1ed *5

si&i'ar 4idespread reports o2 i&propriet5. #1e5 are not in1erent in, and do

not inure so'e'5 to, t1e Arro5o ad&inistration. As Justi)e Isa(ani Cru< put it,

@Super2i)ia' di22eren)es do not &a3e 2or a va'id )'assi2i)ation.BB/BB0

#1e pu*'i) needs to *e en'i(1tened 415 Exe)utive Order No.

)1ooses to 'i&it t1e s)ope o2 t1e intended investi(ation to t1e previous

ad&inistration on'5. #1e OS ventures to opine t1at @to in)'ude ot1er past

ad&inistrations, at t1is point, &a5 unne)essari'5 over*urden t1e )o&&ission

and 'ead it to 'ose its e22e)tiveness.B;/B;0#1e reason (iven is spe)ious. It is

4it1out dou*t irre'evant to t1e 'e(iti&ate and no*'e o*?e)tive o2 t1e P#C to

sta&p out or @end )orruption and t1e evi' it *reeds.;/;0

#1e pro*a*i'it5 t1at t1ere 4ou'd *e di22i)u't5 in uneart1in( eviden)e

or t1at t1e ear'ier reports invo'vin( t1e ear'ier ad&inistrations 4ere a'read5

in>uired into is *eside t1e point. O*vious'5, de)eased presidents and )ases

41i)1 1ave a'read5 pres)ri*ed )an no 'on(er *e t1e su*?e)ts o2 in>uir5 *5

t1e P#C. Neit1er is t1e P#C expe)ted to )ondu)t si&u'taneous

88 [88]Cru, Constitutional a0, 23 e., !. 128.89 [89]A, e&oranu&, !. 89,rollo, !. /8.9 [9]6thIhereas #lause, >e#uti*e Arer o. 1


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investi(ations o2 previous ad&inistrations, (iven t1e *od5s 'i&ited ti&e and

resour)es. @#1e 'a4 does not re>uire t1e i&possi*'e %8e7 non cogit ad

impossibilia'.A#+/0

iven t1e 2ore(oin( p15si)a' and 'e(a' i&possi*i'it5, t1e Court

'o(i)a''5 re)o(ni., !.92 [92]889 &S :;


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prote)tion under t1e 'a4s s1ou'd not in an5 4a5 *e )ir)u&vented. #1e

Constitution is t1e 2unda&enta' and para&ount 'a4 o2 t1e nation to 41i)1 a''

ot1er 'a4s &ust )on2or& and in a))ordan)e 4it1 41i)1 a'' private ri(1ts

deter&ined and a'' pu*'i) aut1orit5 ad&inistered.;6/;60 La4s t1at do not

)on2or& to t1e Constitution s1ou'd *e stri)3en do4n 2or *ein(

un)onstitutiona'.;7/;70H1i'e t1e t1rust o2 t1e P#C is spe)i2i), t1at is, 2or

investi(ation o2 a)ts o2 (ra2t and )orruption, Exe)utive Order No. , to

survive, &ust *e read to(et1er 4it1 t1e provisions o2 t1e Constitution. #o

ex)'ude t1e ear'ier ad&inistrations in t1e (uise o2 @su*stantia' distin)tions

4ou'd on'5 )on2ir& t1e petitioners 'a&ent t1at t1e su*?e)t exe)utive order is

on'5 an @adventure in partisan 1osti'it5. In t1e )ase o2 >+ v. Cyprian,;9/;90it

4as 4ritten: @A rat1er 'i&ited nu&*er o2 su)1 )'assi2i)ations 1ave routine'5

*een 1e'd or assu&ed to *e ar*itrar5F t1ose in)'ude: ra)e, nationa' ori(in,

(ender,political activity or membership in a political party,union a)tivit5 or

&e&*ers1ip in a 'a*or union, or &ore (enera''5 t1e exer)ise o2 2irst

a&end&ent ri(1ts.

#o reiterate, in order 2or a )'assi2i)ation to &eet t1e re>uire&ents o2

)onstitutiona'it5, it &ust in)'ude or e&*ra)e a'' persons 41o natura''5

*e'on( to t1e )'ass.;=/;=0@Su)1 a )'assi2i)ation &ust not *e *ased on existin(

)ir)u&stan)es on'5, or so )onstituted as to pre)'ude additions to t1e nu&*er

in)'uded 4it1in a )'ass, *ut &ust *e o2 su)1 a nature as to e&*ra)e a'' t1ose

41o &a5 t1erea2ter *e in si&i'ar )ir)u&stan)es and )onditions.

93 [93] Macalintal v. C"MELEC, .. o. 15713, ul' 1, 23, /5 C% 61/, !!. 631632$Manila Prince Hotel vs. 0S)S, 335 Phil. 82, 11 (1997).

9/ [9/]4. at 632.95 [95]756 E. u!!. 388, .. F. 4n., 1991, an 3, 1991, Cri& o. C 9/2$ also

htt!:;;in.fina#ase.#o&;resear#h;0fr&Fo#Gie0er.as!;?;fa#.199113M2.4.ht&;?a##esse Fe#e&"er 5, 21=

96 [96] McErlain v. Ta%lor, 27 4n. 2/ #ite in %&. ur. 2, Gol. 16 ("), !. 367.
http://in.findacase.com/research/wfrmDocViewer.aspx/xq/fac.19910130_0000002.NIN.htm/qxhttp://in.findacase.com/research/wfrmDocViewer.aspx/xq/fac.19910130_0000002.NIN.htm/qx


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8urt1er&ore, a'' 41o are in situations and )ir)u&stan)es 41i)1 are re'ative

to t1e dis)ri&inator5 'e(is'ation and 41i)1 are indistin(uis1a*'e 2ro& t1ose

o2 t1e &e&*ers o2 t1e )'ass &ust *e *rou(1t under t1e in2'uen)e o2 t1e 'a4

and treated *5 it in t1e sa&e 4a5 as are t1e &e&*ers o2 t1e )'ass.;+/;+0

#1e Court is not una4are t1at @&ere underin)'usiveness is not 2ata' to

t1e va'idit5 o2 a 'a4 under t1e e>ua' prote)tion )'ause. ;B/;B0@Le(is'ation is

not un)onstitutiona' &ere'5 *e)ause it is not a''-e&*ra)in( and does not

in)'ude a'' t1e evi's 4it1in its rea)1.;;/;;0 It 1as *een 4ritten t1at a

re(u'ation )1a''en(ed under t1e e>ua' prote)tion )'ause is not devoid o2 a

rationa' predi)ate si&p'5 *e)ause it 1appens to *e in)o&p'ete./0 In

severa' instan)es, t1e underin)'usiveness 4as not )onsidered a va'id reason

to stri3e do4n a 'a4 or re(u'ation 41ere t1e purpose )an *e attained in

2uture 'e(is'ations or re(u'ations. #1ese )ases re2er to t1e @step *5 step

pro)ess./0@Hit1 re(ard to e>ua' prote)tion )'ai&s, a 'e(is'ature does not

run t1e ris3 o2 'osin( t1e entire re&edia' s)1e&e si&p'5 *e)ause it 2ai's,

t1rou(1 inadverten)e or ot1er4ise, to )over ever5 evi' t1at &i(1t

)on)eiva*'5 1ave *een atta)3ed./0

In Exe)utive Order No. , 1o4ever, t1ere is no inadverten)e. #1at t1e

previous ad&inistration 4as pi)3ed out 4as de'i*erate and intentiona' as )an

97 [97] Martin v. Tolle#son, 2/ Iash. 2 211 #ite in %&. ur. 2, Gol. 16 ("), !!. 367368 .

98 [98] 4ion v. Administrator o# 0eneral Services, /33 - /25 #ite in %&. ur. 2, Gol. 16 ("), !.371.

99 [99] Hunter v. lowers, /3 o 2 /35 #ite in %&. ur. 2, Gol. 16 ("), !. 37.1 [1]Clements v. ashing, /57 - 957.11 [11]ee %&. ur. 2, Gol. 16 ("), !!. 37371, as footnote (% state le+islature &a', #onsistentl'

0ith the >?ual Prote#tion Clause, aress a !ro"le& one ste! at a ti&e, or e*en sele#t one!hase of one fiel an a!!l' a re&e' there, ne+le#tin+ the others. [effeson *. a#@ne', /6- 535].

12 [12] McDonald v. /oard o# Election Com=rs o# Chicago, 39/ - 82 #ite in %& ur 2,Eootnote o. 9.


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*e ('eaned 2ro& t1e 2a)t t1at it 4as unders)ored at 'east t1ree ti&es in t1e

assai'ed exe)utive order. It &ust *e noted t1at Exe)utive Order No. does

not even &ention an5 parti)u'ar a)t, event or report to *e 2o)used on un'i3e

t1e investi(ative )o&&issions )reated in t1e past. @#1e e>ua' prote)tion

)'ause is vio'ated *5 purpose2u' and intentiona' dis)ri&ination.6/60

#o disprove petitioners )ontention t1at t1ere is de'i*erate

dis)ri&ination, t1e OS )'ari2ies t1at t1e )o&&ission does not on'5 )on2ine

itse'2 to )ases o2 'ar(e s)a'e (ra2t and )orruption )o&&itted durin( t1e

previous ad&inistration.7/70 #1e OS points to Se)tion + o2 Exe)utive

Order No. , 41i)1 provides:

SEC#ION +. +pecial Provision Concerning 4andate. I2 and 41en in t1e?ud(&ent o2 t1e President t1ere is a need to expand t1e &andate o2 t1e

Co&&ission as de2ined in Se)tion 1ereo2 to in)'ude t1e investi(ation o2

)ases and instan)es o2 (ra2t and )orruption durin( t1e priorad&inistrations, su)1 &andate &a5 *e so extended a))ordin('5 *5 4a5 o2

a supp'e&enta' Exe)utive Order.

#1e Court is not )onvin)ed. A't1ou(1 Se)tion + a''o4s t1e

President t1e dis)retion to expand t1e s)ope o2 investi(ations o2 t1e P#C so

as to in)'ude t1e a)ts o2 (ra2t and )orruption )o&&itted in ot1er past

ad&inistrations, it does not (uarantee t1at t1e5 4ou'd *e )overed in t1e

2uture. Su)1 expanded &andate o2 t1e )o&&ission 4i'' sti'' depend on t1e

41i& and )apri)e o2 t1e President. I2 1e 4ou'd de)ide not to in)'ude t1e&,

t1e se)tion 4ou'd t1en *e &eanin('ess. #1is 4i'' on'5 2orti25 t1e 2ears o2 t1e

petitioners t1at t1e Exe)utive Order No. 4as @)ra2ted to tai'or-2it t1e

13 [13]!ic'etts v. Cit% o# Hard#ord, 7/ E. 3 1397 #ite in %&. ur. 2, Gol. 16 ("), !. 33.1/ [1/]A Consoliate Co&&ent, !. 66, rollo, !.186.


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prose)ution o2 o22i)ia's and persona'ities o2 t1e Arro5o ad&inistration.9/90

#1e Court tried to see3 (uidan)e 2ro& t1e pronoun)e&ent in t1e )ase

o2


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o2 t1e )ourts o2 ?usti)e to sett'e a)tua' )ontroversies invo'vin( ri(1ts 41i)1

are 'e(a''5 de&anda*'e and en2or)ea*'e, and to deter&ine 41et1er or not

t1ere 1as *een a (rave o2 a*use o2 dis)retion a&ountin( to 'a)3 or ex)ess o2

?urisdi)tion on t1e part o2 an5 *ran)1 or instru&enta'it5 o2 t1e (overn&ent.

8urt1er&ore, in Se)tion 7D t1ereo2, it is vested 4it1 t1e po4er o2

?udi)ia' revie4 41i)1 is t1e po4er to de)'are a treat5, internationa' or

exe)utive a(ree&ent, 'a4, presidentia' de)ree, pro)'a&ation, order,

instru)tion, ordinan)e, or re(u'ation un)onstitutiona'. #1is po4er a'so

in)'udes t1e dut5 to ru'e on t1e )onstitutiona'it5 o2 t1e app'i)ation, or

operation o2 presidentia' de)rees, pro)'a&ations, orders, instru)tions,

ordinan)es, and ot1er re(u'ations. #1ese provisions, 1o4ever, 1ave *een

2erti'e (rounds o2 )on2'i)t *et4een t1e Supre&e Court, on one 1and, and t1e

t4o )o-e>ua' *odies o2 (overn&ent, on t1e ot1er. Man5 ti&es t1e Court 1as

*een a))used o2 assertin( superiorit5 over t1e ot1er depart&ents.

#o ans4er t1is a))usation, t1e 4ords o2 Justi)e Laure' 4ou'd *e a

(ood sour)e o2 en'i(1ten&ent, to 4it: @And 41en t1e ?udi)iar5 &ediates to

a''o)ate )onstitutiona' *oundaries, it does not assert an5 superiorit5 over t1e

ot1er depart&entsF it does not in rea'it5 nu''i25 or inva'idate an a)t o2 t1e

'e(is'ature, *ut on'5 asserts t1e so'e&n and sa)red o*'i(ation assi(ned to it

*5 t1e Constitution to deter&ine )on2'i)tin( )'ai&s o2 aut1orit5 under t1e

Constitution and to esta*'is1 2or t1e parties in an a)tua' )ontrovers5 t1e

ri(1ts 41i)1 t1at instru&ent se)ures and (uarantees to t1e&.+/+0

#1us, t1e Court, in exer)isin( its po4er o2 ?udi)ia' revie4, is not

i&posin( its o4n 4i'' upon a )o-e>ua' *od5 *ut rat1er si&p'5 &a3in( sure

17 [17]Angara v. Electoral Commission, 63 Phil. 139, 158 (1936).


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t1at an5 a)t o2 (overn&ent is done in )onsonan)e 4it1 t1e aut1orities and

ri(1ts a''o)ated to it *5 t1e Constitution. And, i2 a2ter said revie4, t1e Court

2inds no )onstitutiona' vio'ations o2 an5 sort, t1en, it 1as no &ore aut1orit5

o2 pros)ri*in( t1e a)tions under revie4. Ot1er4ise, t1e Court 4i'' not *e

deterred to pronoun)e said a)t as void and un)onstitutiona'.

It )annot *e denied t1at &ost (overn&ent a)tions are inspired 4it1

no*'e intentions, a'' (eared to4ards t1e *etter&ent o2 t1e nation and its

peop'e. $ut t1en a(ain, it is i&portant to re&e&*er t1is et1i)a' prin)ip'e:

@#1e end does not ?usti25 t1e &eans. No &atter 1o4 no*'e and 4ort15 o2

ad&iration t1e purpose o2 an a)t, *ut i2 t1e &eans to *e e&p'o5ed in

a))o&p'is1in( it is si&p'5 irre)on)i'a*'e 4it1 )onstitutiona' para&eters,

t1en it )annot sti'' *e a''o4ed.B/B0#1e Court )annot ?ust turn a *'ind e5e

and si&p'5 'et it pass. It 4i'' )ontinue to up1o'd t1e Constitution and its

ens1rined prin)ip'es.

he Constitution must ever remain supreme. ll must

bow to the mandate of this law. /7pediency must not be allowed

to sap its strength nor greed for power debase its

rectitude.$#"A+01/

Lest it *e &isunderstood, t1is is not t1e deat1 3ne'' 2or a trut1

)o&&ission as no*'5 envisioned *5 t1e present ad&inistration. Per1aps !

+)*//$" $5 6) )


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4i'' not a''o4 itse'2 to *e a 1indran)e or o*sta)'e to its attain&ent. It &ust,

1o4ever, *e e&p1asiua' prote)tion )'ause o2 t1e Constitution.

As a'so pra5ed 2or, t1e respondents are 1ere*5 ordered to )ease and

desist 2ro& )arr5in( out t1e provisions o2 Exe)utive Order No. .

SO ORDERED.

JOSE CATRAL MENDOA

Asso)iate Justi)e

@E CONCUR

S)) )4!+!) $4/"/$" -$"-++/":

RENATO C. CORONA

C1ie2 Justi)e

See dissentin( opinion P'ease see dissentin(

/00epublic v. +outhside 6omeowners ssociation, .R. No. 9=;9, Septe&*er , =.


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opinion

ANTONIO T. CARPIO CONCHITA CARPIO MORALES

Asso)iate Justi)e

Asso)iate Justi)e

I )erti25 t1at

Justi)e Ve'as)o 'e2t 1is )on)urrin( vote See )on)urrin( dissentin(

opinion

PRESBITERO J. VELASCO, JR. ANTONIO EDUARDO B. NACHURA

Asso)iate Justi)e Asso)iate Justi)e

S)) )4!+!) -$"-++/": $4/"/$" S)) )4!+!)

$4/"/$" -$"-++/":

TERESITA J. LEONARDODE CASTRO ARTURO D. BRION


S)) )4!+!) -$"-++/": $4/"/$" )) )4!+!)

-$"-++/": $4/"/$"

DIOSDADO M. PERALTA LUCAS P. BERSAMIN



52/53

S)) )4!+!) #/)"/":

$4/"/$"

MARIANO C. DEL CASTILLO ROBERTO A. ABAD

Asso)iate Justi)e Asso)iate

Justi)e

See separate opinion

D)on)urrin(

MARTIN S. VILLARAMA, JR. JOSE PORTUGAL PERE


S)) #/)"/": $4/"/$"

MARIA LOURDES P.A. SERENO

Asso)iate Justi)e


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C E 2 T ( 3 ( C A T ( O N

Pursuant to Se)tion 6, Arti)'e VIII o2 t1e Constitution, I )erti25 t1at

t1e )on)'usions in t1e a*ove "e)ision 1ad *een rea)1ed in )onsu'tation

*e2ore t1e )ase 4as assi(ned to t1e 4riter o2 t1e opinion o2 t1e Court.

RENATO C. CORONAC1ie2 Justi)e

Biriago v. Truth Commission

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