G.R. No. 192935 December 7, 2010

8/13/2019 G.R. No. 192935 December 7, 2010

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G.R. No. 192935 December 7, 2010

LOUIS "BAROK" C. BIRAOGO, Petitioner,vs.T! ILIIN! TRUT CO##ISSION O$ 2010, Respondent.

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G.R. No. 19303%

R!. !DC!L C. LAG#AN, R!. RODOL$O B. ALBANO, &R., R!. SI#!ON A. DATU#ANONG, and R!. ORLANDO B. $UA,SR., Petitioners,vs.!'!CUTI(! S!CR!TAR) A*UITO N. OCOA, &R. +- D!ART#!NT O$ BUDG!T AND #ANAG!#!NT S!CR!TAR)$LOR!NCIO B. ABAD, Respondents.

D E C I S I O N

#!NDOA, 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 bythe Constitution to determine conflicting claims of authority under the Constitution and to establish for the parties in an actualcontroversy the rights which that instrument secures and guarantees to them.

--- Justice Jose P. Laurel1

!e role o" t!e Constitution cannot #e overloo$ed. It is t!rou%! t!e Constitution t!at t!e "unda&ental po'ers o" %overn&ent areesta#lis!ed, li&ited and de"ined, and #( '!ic! t!ese po'ers are distri#uted a&on% t!e several depart&ents.) !e Constitution is t!e#asic and para&ount la' to '!ic! all ot!er la's &ust con"or& and to '!ic! all persons, includin% t!e !i%!est o""icials o" t!e land,&ust de"er.* Constitutional doctrines &ust re&ain stead"ast no &atter '!at &a( #e t!e tides o" ti&e. It cannot #e si&pl( &ade tos'a( and acco&&odate t!e call o" situations and &uc! &ore tailor itsel" to t!e '!i&s and caprices o" %overn&ent and t!e people'!o run it.+

or consideration #e"ore t!e Court are t'o consolidated cases #ot! o" '!ic! essentiall( assail t!e validit( and constitutionalit( o"Executive Order No. 1, dated Jul( *, )1, entitled /Creatin% t!e P!ilippine rut! Co&&ission o" )1./

!e "irst case is 0.R. No. 1)*, a special civil action "or pro!i#ition instituted #( petitioner Louis 2irao%o 32irao%o4 in !is capacit(as a citi5en and taxpa(er. 2irao%o assails Executive Order No. 1 "or #ein% violative o" t!e le%islative po'er o" Con%ress underSection 1, 6rticle 7I o" t!e Constitution8 as it usurps t!e constitutional aut!orit( o" t!e le%islature to create a pu#lic o""ice and toappropriate "unds t!ere"or .9

!e second case, 0.R. No. 1**8, is a special civil action "or certiorari and pro!i#ition "iled #( petitioners Edcel C. La%&an,Rodol"o 2. 6l#ano Jr., Si&eon 6. Datu&anon%, and Orlando 2. ua, Sr. 3petitioners-le%islators4 as incu&#ent &e&#ers o" t!e:ouse o" Representatives.

!e %enesis o" t!e "ore%oin% cases can #e traced to t!e events prior to t!e !istoric ;a( )1 elections, '!en t!en Senator 2eni%noSi&eon 6<uino III declared !is staunc! conde&nation o" %ra"t and corruption 'it! !is slo%an, "Kung walang corrupt, walangmahirap." !e ilipino people, convinced o" !is sincerit( and o" !is a#ilit( to carr( out t!is no#le o#=ective, catapulted t!e %oodsenator to t!e presidenc(.

o trans"or& !is ca&pai%n slo%an into realit(, President 6<uino "ound a need "or a special #od( to investi%ate reported cases o"%ra"t and corruption alle%edl( co&&itted durin% t!e previous ad&inistration.

!us, at t!e da'n o" !is ad&inistration, t!e President on Jul( *, )1, si%ned Executive Order No. 1 esta#lis!in%t!e Philippine rut! Co&&ission o" )1 3rut! Co&&ission4. Pertinent provisions o" said executive order read>

!'!CUTI(! ORD!R NO. 1CR!ATING T! ILIIN! TRUT CO##ISSION O$ 2010

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/!R!AS, 6rticle ?I, Section 1 o" t!e 1@9 Constitution o" t!e P!ilippines sole&nl( ens!rines t!e principle t!at a pu#lic o""ice is apu#lic trust and &andates t!at pu#lic o""icers and e&plo(ees, '!o are servants o" t!e people, &ust at all ti&es #e accounta#le tot!e latter, serve t!e& 'it! ut&ost responsi#ilit(, inte%rit(, lo(alt( and e""icienc(, act 'it! patriotis& and =ustice, and lead &odestlivesA

/!R!AS, corruption is a&on% t!e &ost despica#le acts o" de"iance o" t!is principle and notorious violation o" t!is &andateA

/!R!AS, corruption is an evil and scour%e '!ic! seriousl( a""ects t!e political, econo&ic, and social li"e o" a nationA in a ver(special 'a( it in"licts untold &is"ortune and &iser( on t!e poor, t!e &ar%inali5ed and underprivile%ed sector o" societ(A

/!R!AS, corruption in t!e P!ilippines !as reac!ed ver( alar&in% levels, and under&ined t!e peopleBs trust and con"idence in t!e0overn&ent and its institutionsA

/!R!AS, t!ere is an ur%ent call "or t!e deter&ination o" t!e trut! re%ardin% certain reports o" lar%e scale %ra"t and corruption int!e %overn&ent and to put a closure to t!e& #( t!e "ilin% o" t!e appropriate cases a%ainst t!ose involved, i" 'arranted, and to deterot!ers "ro& co&&ittin% t!e evil, restore t!e peopleBs "ait! and con"idence in t!e 0overn&ent and in t!eir pu#lic servantsA

/!R!AS, t!e PresidentBs #attlecr( durin% !is ca&pai%n "or t!e Presidenc( in t!e last elections /$un% 'alan% corrupt, 'alan%&a!irap/ expresses a sole&n pled%e t!at i" elected, !e 'ould end corruption and t!e evil it #reedsA

/!R!AS, t!ere is a need "or a separate #od( dedicated solel( to investi%atin% and "indin% out t!e trut! concernin% t!e reportedcases o" %ra"t and corruption durin% t!e previous ad&inistration, and '!ic! 'ill reco&&end t!e prosecution o" t!e o""enders and

secure =ustice "or allA

/!R!AS, 2oo$ III, C!apter 1, Section *1 o" Executive Order No. )), ot!er'ise $no'n as t!e Revised 6d&inistrative Code o"t!e P!ilippines, %ives t!e President t!e continuin% aut!orit( to reor%ani5e t!e O""ice o" t!e President.

NO/, T!R!$OR!, I, B!NIGNO SI#!ON A*UINO III, President o" t!e Repu#lic o" t!e P!ilippines, #( virtue o" t!e po'ers vestedin &e #( la', do !ere#( order>

S!CTION 1. Cre+o o + Commo. !ere is !ere#( created t!e ILIIN! TRUT CO##ISSION, !ereina"ter re"erred toas t!e "CO##ISSION," '!ic! s!all pri&aril( see$ and "ind t!e trut! on, and to'ard t!is end, investi%ate reports o" %ra"t andcorruption o" suc! scale and &a%nitude t!at s!oc$ and o""end t!e &oral and et!ical sensi#ilities o" t!e people, co&&itted #( pu#lico""icers and e&plo(ees, t!eir co-principals, acco&plices and accessories "ro& t!e private sector, i" an(, durin% t!e previousad&inistrationA and t!erea"ter reco&&end t!e appropriate action or &easure to #e ta$en t!ereon to ensure t!at t!e "ull &easure o"

=ustice s!all #e served 'it!out "ear or "avor.

!e Co&&ission s!all #e co&posed o" a C!air&an and "our 3+4 &e&#ers '!o 'ill act as an independent colle%ial #od(.

S!CTION 2. o4er +- $co. !e Co&&ission, '!ic! s!all !ave all t!e po'ers o" an investi%ative #od( under Section*9, C!apter , 2oo$ I o" t!e 6d&inistrative Code o" 1@9, is pri&aril( tas$ed to conduct a t!orou%! "act-"indin% investi%ation o"reported cases o" %ra"t and corruption re"erred to in Section 1, involvin% t!ird level pu#lic o""icers and !i%!er, t!eir co-principals,acco&plices and accessories "ro& t!e private sector, i" an(, durin% t!e previous ad&inistration and t!erea"ter su#&it its "indin% andreco&&endations to t!e President, Con%ress and t!e O&#uds&an.

In particular, it s!all>

a4 Identi"( and deter&ine t!e reported cases o" suc! %ra"t and corruption '!ic! it 'ill investi%ateA

#4 Collect, receive, revie' and evaluate evidence related to or re%ardin% t!e cases o" lar%e scale corruption'!ic! it !as c!osen to investi%ate, and to t!is end re<uire an( a%enc(, o""icial or e&plo(ee o" t!e Executive

2ranc!, includin% %overn&ent-o'ned or controlled corporations, to produce docu&ents, #oo$s, records andot!er papersA

c4 pon proper re<uest or representation, o#tain in"or&ation and docu&ents "ro& t!e Senate and t!e :ouse o"Representatives records o" investi%ations conducted #( co&&ittees t!ereo" relatin% to &atters or su#=ects #ein%investi%ated #( t!e Co&&issionA

d4 pon proper re<uest and representation, o#tain in"or&ation "ro& t!e courts, includin% t!e Sandi%an#a(anand t!e O""ice o" t!e Court 6d&inistrator, in"or&ation or docu&ents in respect to corruption cases "iled 'it! t!eSandi%an#a(an or t!e re%ular courts, as t!e case &a( #eA

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e4 Invite or su#poena 'itnesses and ta$e t!eir testi&onies and "or t!at purpose, ad&inister oat!s or a""ir&ationsas t!e case &a( #eA

"4 Reco&&end, in cases '!ere t!ere is a need to utili5e an( person as a state 'itness to ensure t!at t!e endso" =ustice #e "ull( served, t!at suc! person '!o <uali"ies as a state 'itness under t!e Revised Rules o" Court o"t!e P!ilippines #e ad&itted "or t!at purposeA

%4 urn over "ro& ti&e to ti&e, "or expeditious prosecution, to t!e appropriate prosecutorial aut!orities, #(&eans o" a special or interim report and reco&&endation, all evidence on corruption o" pu#lic o""icers ande&plo(ees and t!eir private sector co-principals, acco&plices or accessories, i" an(, '!en in t!e course o" itsinvesti%ation t!e Co&&ission "inds t!at t!ere is reasona#le %round to #elieve t!at t!e( are lia#le "or %ra"t andcorruption under pertinent applica#le la'sA

!4 Call upon an( %overn&ent investi%ative or prosecutorial a%enc( suc! as t!e Depart&ent o" Justice or an( o"t!e a%encies under it, and t!e Presidential 6nti-0ra"t Co&&ission, "or suc! assistance and cooperation as it&a( re<uire in t!e disc!ar%e o" its "unctions and dutiesA

i4 En%a%e or contract t!e services o" resource persons, pro"essionals and ot!er personnel deter&ined #( it asnecessar( to carr( out its &andateA

=4 Pro&ul%ate its rules and re%ulations or rules o" procedure it dee&s necessar( to e""ectivel( and e""icientl(carr( out t!e o#=ectives o" t!is Executive Order and to ensure t!e orderl( conduct o" its investi%ations,

proceedin%s and !earin%s, includin% t!e presentation o" evidenceA

$4 Exercise suc! ot!er acts incident to or are appropriate and necessar( in connection 'it! t!e o#=ectives andpurposes o" t!is Order.

S!CTION 3. S+6 Rereme. x x x.

S!CTION 8. De+ o !m:o;ee. x x x.

S!CTION 5. !6+6eme o !<:er. x x x

S!CTION %. Co-c o rocee-6. x x x.

S!CTION 7. R6= o Coe o /ee>Reorce ero. ? < < <.

S!CTION @. roeco o /ee>Reorce ero. x x x.

S!CTION 9. Re+ o Obe; Sb:oe+, T+e O+= or Ge Temo;. 6n( %overn&ent o""icial or personnel '!o, 'it!outla'"ul excuse, "ails to appear upon su#poena issued #( t!e Co&&ission or '!o, appearin% #e"ore t!e Co&&ission re"uses to ta$eoat! or a""ir&ation, %ive testi&on( or produce docu&ents "or inspection, '!en re<uired, s!all #e su#=ect to ad&inistrativedisciplinar( action. 6n( private person '!o does t!e sa&e &a( #e dealt 'it! in accordance 'it! la'.

S!CTION 10. D; o !<e- A+ce o =e Commo. x x x.

S!CTION 11. B-6e or =e Commo. ? !e O""ice o" t!e President s!all provide t!e necessar( "unds "or t!e Co&&ission toensure t!at it can exercise its po'ers, execute its "unctions, and per"or& its duties and responsi#ilities as e""ectivel(, e""icientl(, andexpeditiousl( as possi#le.

S!CTION 12. Oce. x x x.

S!CTION 13. $rre>!:me. x x x.

S!CTION 18. Term o =e Commo. ? !e Co&&ission s!all acco&plis! its &ission on or #e"ore Dece&#er *1, )1).

S!CTION 15. bc+o o $+ Re:or. ? < < <.

S!CTION 1%. Tr+er o Recor- +- $+ce o =e Commo. ? x x x.

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S!CTION 17. S:ec+ roo Cocer6 #+-+e. I" and '!en in t!e =ud%&ent o" t!e President t!ere is a need to expand t!e&andate o" t!e Co&&ission as de"ined in Section 1 !ereo" to include t!e investi%ation o" cases and instances o" %ra"t andcorruption durin% t!e prior ad&inistrations, suc! &andate &a( #e so extended accordin%l( #( 'a( o" a supple&ental ExecutiveOrder.

S!CTION 1@. Se:+r+b; C+e. I" an( provision o" t!is Order is declared unconstitutional, t!e sa&e s!all not a""ect t!e validit(and e""ectivit( o" t!e ot!er provisions !ereo".

S!CTION 19. !ec;. !is Executive Order s!all ta$e e""ect i&&ediatel(.

DONE in t!e Cit( o" ;anila, P!ilippines, t!is *t! da( o" Jul( )1.

SGD. B!NIGNO S. A*UINO III2( t!e President>

SGD. A*UITO N. OCOA, &R.Executive Secretar(

Nature o" t!e rut! Co&&ission

6s can #e %leaned "ro& t!e a#ove-<uoted provisions, t!e P!ilippine rut! Co&&ission 3PC4 is a &ere ad !oc #od( "or&ed under

t!e O""ice o" t!e President 'it! t!e pri&ar( tas$ to investi%ate reports o" %ra"t and corruption co&&itted #( t!ird-level pu#lic o""icersand e&plo(ees, t!eir co-principals, acco&plices and accessories durin% t!e previous ad&inistration, and t!erea"ter to su#&it its"indin% and reco&&endations to t!e President, Con%ress and t!e O&#uds&an. !ou%! it !as #een descri#ed as an /independentcolle%ial #od(,/ it is essentiall( an entit( 'it!in t!e O""ice o" t!e President Proper and su#=ect to !is control. Dou#tless, it constitutesa pu#lic o""ice, as an ad !oc #od( is one.@

o acco&plis! its tas$, t!e PC s!all !ave all t!e po'ers o" an investi%ative #od( under Section *9, C!apter , 2oo$ I o" t!e 6d&inistrative Code o" 1@9. It is not, !o'ever, a <uasi-=udicial #od( as it cannot ad=udicate, ar#itrate, resolve, settle, or rendera'ards in disputes #et'een contendin% parties. 6ll it can do is %at!er, collect and assess evidence o" %ra"t and corruption and &a$ereco&&endations. It &a( !ave su#poena po'ers #ut it !as no po'er to cite people in conte&pt, &uc! less order t!eir arrest.

6lt!ou%! it is a "act-"indin% #od(, it cannot deter&ine "ro& suc! "acts i" pro#a#le cause exists as to 'arrant t!e "ilin% o" anin"or&ation in our courts o" la'. Needless to state, it cannot i&pose cri&inal, civil or ad&inistrative penalties or sanctions.

!e PC is di""erent "ro& t!e trut! co&&issions in ot!er countries '!ic! !ave #een created as o""icial, transitor( and non-=udicial"act-"indin% #odies /to esta#lis! t!e "acts and context o" serious violations o" !u&an ri%!ts or o" international !u&anitarian la' in acountr(Bs past./ !e( are usuall( esta#lis!ed #( states e&er%in% "ro& periods o" internal unrest, civil stri"e or aut!oritarianis& to

serve as &ec!anis&s "or transitional =ustice.

rut! co&&issions !ave #een descri#ed as #odies t!at s!are t!e "ollo'in% c!aracteristics> 314 t!e( exa&ine onl( past eventsA 3)4t!e( investi%ate patterns o" a#use co&&itted over a period o" ti&e, as opposed to a particular eventA 3*4 t!e( are te&porar( #odiest!at "inis! t!eir 'or$ 'it! t!e su#&ission o" a report containin% conclusions and reco&&endationsA and 3+4 t!e( are o""iciall(sanctioned, aut!ori5ed or e&po'ered #( t!e State.1/Co&&issionBs &e&#ers are usuall( e&po'ered to conduct researc!, supportvicti&s, and propose polic( reco&&endations to prevent recurrence o" cri&es. !rou%! t!eir investi%ations, t!e co&&issions &a(ai& to discover and learn &ore a#out past a#uses, or "or&all( ac$no'led%e t!e&. !e( &a( ai& to prepare t!e 'a( "orprosecutions and reco&&end institutional re"or&s./11

!us, t!eir &ain %oals ran%e "ro& retri#ution to reconciliation. !e Nure&#ur% and o$(o 'ar cri&e tri#unals are exa&ples o" aretri#utor( or vindicator( #od( set up to tr( and punis! t!ose responsi#le "or cri&es a%ainst !u&anit(. 6 "or& o" a reconciliator(tri#unal is t!e rut! and Reconciliation Co&&ission o" Sout! 6"rica, t!e principal "unction o" '!ic! 'as to !eal t!e 'ounds o" pastviolence and to prevent "uture con"lict #( providin% a cat!artic experience "or victi&s.

!e PC is a "ar cr( "ro& Sout! 6"ricaBs &odel. !e latter placed &ore e&p!asis on reconciliation t!an on =udicial retri#ution, '!ilet!e &arc!in% order o" t!e PC is t!e identi"ication and punis!&ent o" perpetrators. 6s one 'riter 1) puts it>

!e order ruled out reconciliation. It translated t!e Draconian code spelled out #( 6<uino in !is inau%ural speec!> /o t!ose '!o tal$a#out reconciliation, i" t!e( &ean t!at t!e( 'ould li$e us to si&pl( "or%et a#out t!e 'ron%s t!at t!e( !ave co&&itted in t!e past, 'e!ave t!is to sa(> !ere can #e no reconciliation 'it!out =ustice. !en 'e allo' cri&es to %o unpunis!ed, 'e %ive consent to t!eiroccurrin% over and over a%ain./

!e !rusts o" t!e Petitions
















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2arel( a &ont! a"ter t!e issuance o" Executive Order No. 1, t!e petitioners as$ed t!e Court to declare it unconstitutional and toen=oin t!e PC "ro& per"or&in% its "unctions. 6 perusal o" t!e ar%u&ents o" t!e petitioners in #ot! cases s!o's t!at t!e( areessentiall( t!e sa&e. !e petitioners-le%islators su&&ari5ed t!e& in t!e "ollo'in% &anner>

3a4 E.O. No. 1 violates t!e separation o" po'ers as it arro%ates t!e po'er o" t!e Con%ress to create a pu#lic o""ice andappropriate "unds "or its operation.

3#4 !e provision o" 2oo$ III, C!apter 1, Section *1 o" t!e 6d&inistrative Code o" 1@9 cannot le%iti&i5e E.O. No. 1#ecause t!e dele%ated aut!orit( o" t!e President to structurall( reor%ani5e t!e O""ice o" t!e President to ac!ieveecono&(, si&plicit( and e""icienc( does not include t!e po'er to create an entirel( ne' pu#lic o""ice '!ic! 'as !it!ertoinexistent li$e t!e /rut! Co&&ission./

3c4 E.O. No. 1 ille%all( a&ended t!e Constitution and pertinent statutes '!en it vested t!e /rut! Co&&ission/ 'it! <uasi- =udicial po'ers duplicatin%, i" not supersedin%, t!ose o" t!e O""ice o" t!e O&#uds&an created under t!e 1@9 Constitutionand t!e Depart&ent o" Justice created under t!e 6d&inistrative Code o" 1@9.

3d4 E.O. No. 1 violates t!e e<ual protection clause as it selectivel( tar%ets "or investi%ation and prosecution o""icials andpersonnel o" t!e previous ad&inistration as i" corruption is t!eir peculiar species even as it excludes t!ose o" t!e ot!erad&inistrations, past and present, '!o &a( #e indicta#le.

3e4 !e creation o" t!e /P!ilippine rut! Co&&ission o" )1/ violates t!e consistent and %eneral international practice o""our decades '!erein States constitute trut! co&&issions to exclusivel( investi%ate !u&an ri%!ts violations, '!ic!

custo&ar( practice "or&s part o" t!e %enerall( accepted principles o" international la' '!ic! t!e P!ilippines is &andatedto ad!ere to pursuant to t!e Declaration o" Principles ens!rined in t!e Constitution.

3"4 !e creation o" t!e /rut! Co&&ission/ is an exercise in "utilit(, an adventure in partisan !ostilit(, a launc!in% pad "ortrialFconviction #( pu#licit( and a &ere populist propa%anda to &ista$enl( i&press t!e people t!at 'idespread povert( 'illalto%et!er vanis! i" corruption is eli&inated 'it!out even addressin% t!e ot!er &a=or causes o" povert(.

3%4 !e &ere "act t!at previous co&&issions 'ere not constitutionall( c!allen%ed is o" no &o&ent #ecause neit!er lac!esnor estoppel can #ar an eventual <uestion on t!e constitutionalit( and validit( o" an executive issuance or even astatute./1*

In t!eir Consolidated Co&&ent,1+ t!e respondents, t!rou%! t!e O""ice o" t!e Solicitor 0eneral !#$, essentiall( <uestioned t!ele%al standin% o" petitioners and de"ended t!e assailed executive order 'it! t!e "ollo'in% ar%u&ents>

1G E.O. No. 1 does not arro%ate t!e po'ers o" Con%ress to create a pu#lic o""ice #ecause t!e PresidentBs executive po'er

and po'er o" control necessaril( include t!e in!erent po'er to conduct investi%ations to ensure t!at la's are "ait!"ull(executed and t!at, in an( event, t!e Constitution, Revised 6d&inistrative Code o" 1@9 3E.O. No. ))4, 1 PresidentialDecree 3P.D.4 No. 1+1818 3as a&ended #( P.D. No. 199)4, R.6. No. 9,19 and settled =urisprudence t!at aut!ori5e t!ePresident to create or "or& suc! #odies.

)G E.O. No. 1 does not usurp t!e po'er o" Con%ress to appropriate "unds #ecause t!ere is no appropriation #ut a &ereallocation o" "unds alread( appropriated #( Con%ress.

*G !e rut! Co&&ission does not duplicate or supersede t!e "unctions o" t!e O""ice o" t!e O&#uds&an 3O&#uds&an4and t!e Depart&ent o" Justice 3DOJ4, #ecause it is a "act-"indin% #od( and not a <uasi-=udicial #od( and its "unctions donot duplicate, supplant or erode t!e latterBs =urisdiction.

+G !e rut! Co&&ission does not violate t!e e<ual protection clause #ecause it 'as validl( created "or lauda#lepurposes.

!e OS0 t!en points to t!e continued existence and validit( o" ot!er executive orders and presidential issuances creatin% si&ilar#odies to =usti"( t!e creation o" t!e PC suc! as Presidential Co&plaint and 6ction Co&&issionPC%C$ #( President Ra&on 2.;a%sa(sa(, Presidential Co&&ittee on 6d&inistrative Per"or&ance E""icienc(PC%P&$ #( President Carlos P. 0arcia andPresidential 6%enc( on Re"or& and 0overn&ent OperationsP%'#!$ #( President erdinand E. ;arcos.1@

ro& t!e petitions, pleadin%s, transcripts, and &e&oranda, t!e "ollo'in% are t!e principal issues to #e resolved>

1. !et!er or not t!e petitioners !ave t!e le%al standin% to "ile t!eir respective petitions and <uestion Executive Order No.1A



















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). !et!er or not Executive Order No. 1 violates t!e principle o" separation o" po'ers #( usurpin% t!e po'ers o"Con%ress to create and to appropriate "unds "or pu#lic o""ices, a%encies and co&&issionsA

*. !et!er or not Executive Order No. 1 supplants t!e po'ers o" t!e O&#uds&an and t!e DOJA

+. !et!er or not Executive Order No. 1 violates t!e e<ual protection clauseA and

. !et!er or not petitioners are entitled to in=unctive relie".

!e+ ree or E-c+ ree4

2e"ore proceedin% to resolve t!e issue o" t!e constitutionalit( o" Executive Order No. 1, t!e Court needs to ascertain '!et!er t!ere<uisites "or a valid exercise o" i ts po'er o" =udicial revie' are present.

Li$e al&ost all po'ers con"erred #( t!e Constitution, t!e po'er o" =udicial revie' is su#=ect to li&itations, to 'it> 314 t!ere &ust #e anactual case or controvers( callin% "or t!e exercise o" =udicial po'erA 3)4 t!e person c!allen%in% t!e act &ust !ave t!e standin% to<uestion t!e validit( o" t!e su#=ect act or issuanceA ot!er'ise stated, !e &ust !ave a personal and su#stantial interest in t!e casesuc! t!at !e !as sustained, or 'ill sustain, direct in=ur( as a result o" its en"orce&entA 3*4 t!e <uestion o" constitutionalit( &ust #eraised at t!e earliest opportunit(A and 3+4 t!e issue o" constitutionalit( &ust #e t!e ver( lis mota o" t!e case.1

6&on% all t!ese li&itations, onl( t!e le%al standin% o" t!e petitioners !as #een put at issue.

Le%al Standin% o" t!e Petitioners

!e OS0 attac$s t!e le%al personalit( o" t!e petitioners-le%islators to "ile t!eir petition "or "ailure to de&onstrate t!eir personal sta$ein t!e outco&e o" t!e case. It ar%ues t!at t!e petitioners !ave not s!o'n t!at t!e( !ave sustained or are in dan%er o" sustainin% an(personal in=ur( attri#uta#le to t!e creation o" t!e PC. Not clai&in% to #e t!e su#=ect o" t!e co&&issionBs investi%ations, petitioners'ill not sustain in=ur( in its creation or as a result o" its proceedin%s.)

!e Court disa%rees 'it! t!e OS0 in <uestionin% t!e le%al standin% o" t!e petitioners-le%islators to assail Executive Order No. 1.Evidentl(, t!eir petition pri&aril( invo$es usurpation o" t!e po'er o" t!e Con%ress as a #od( to '!ic! t!e( #elon% as &e&#ers. !iscertainl( =usti"ies t!eir resolve to ta$e t!e cud%els "or Con%ress as an institution and present t!e co&plaints on t!e usurpation o"t!eir po'er and ri%!ts as &e&#ers o" t!e le%islature #e"ore t!e Court. 6s !eld in P!ilippine Constitution 6ssociation v. Enri<ue5,)1

o t!e extent t!e po'ers o" Con%ress are i&paired, so is t!e po'er o" eac! &e&#er t!ereo", since !is o""ice con"ers a ri%!t toparticipate in t!e exercise o" t!e po'ers o" t!at institution.

6n act o" t!e Executive '!ic! in=ures t!e institution o" Con%ress causes a derivative #ut nonet!eless su#stantial in=ur(, '!ic! can #e<uestioned #( a &e&#er o" Con%ress. In suc! a case, an( &e&#er o" Con%ress can !ave a resort to t!e courts.

Indeed, le%islators !ave a le%al standin% to see to it t!at t!e prero%ative, po'ers and privile%es vested #( t!e Constitution in t!eiro""ice re&ain inviolate. !us, t!e( are allo'ed to <uestion t!e validit( o" an( o""icial action '!ic!, to t!eir &ind, in"rin%es on t!eirprero%atives as le%islators.))

it! re%ard to 2irao%o, t!e OS0 ar%ues t!at, as a taxpa(er, !e !as no standin% to <uestion t!e creation o" t!e PC and t!e #ud%et"or its operations.)* It e&p!asi5es t!at t!e "unds to #e used "or t!e creation and operation o" t!e co&&ission are to #e ta$en "ro&t!ose "unds alread( appropriated #( Con%ress. !us, t!e allocation and dis#urse&ent o" "unds "or t!e co&&ission 'ill not entailcon%ressional action #ut 'ill si&pl( #e an exercise o" t!e PresidentBs po'er over contin%ent "unds.

6s correctl( pointed out #( t!e OS0, 2irao%o !as not s!o'n t!at !e sustained, or is in dan%er o" sustainin%, an( personal and direct

in=ur( attri#uta#le to t!e i&ple&entation o" Executive Order No. 1. No'!ere in !is petition is an assertion o" a clear ri%!t t!at &a( =usti"( !is cla&or "or t!e Court to exercise =udicial po'er and to 'ield t!e axe over presidential issuances in de"ense o" t!eConstitution. !e case o" David v. 6rro(o)+ explained t!e deep-seated rules on locus standi. !us>

(ocus standi is de"ined as /a ri%!t o" appearance in a court o" =ustice on a %iven <uestion./ In private suits, standin% is %overned #(t!e /real-parties-in interest/ rule as contained in Section ), Rule * o" t!e 19 Rules o" Civil Procedure, as a&ended. It provides t!at/eer; +co m be :roece- or -ee-e- =e +me o =e re+ :+r; ere./ 6ccordin%l(, t!e /real-part(-ininterest/ is /t!e part( '!o stands to #e #ene"ited or in=ured #( t!e =ud%&ent in t!e suit or t!e part( entitled to t!e avails o" t!e suit./Succinctl( put, t!e plainti""Bs standin% is #ased on !is o'n ri%!t to t!e relie" sou%!t.



















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!e di""icult( o" deter&inin% locus standi arises in pu#lic suits. :ere, t!e plainti"" '!o asserts a /pu#lic ri%!t/ in assailin% an alle%edl(ille%al o""icial action, does so as a representative o" t!e %eneral pu#lic. :e &a( #e a person '!o is a""ected no di""erentl( "ro& an(ot!er person. :e could #e suin% as a /stran%er,/ or in t!e cate%or( o" a /citi5en,/ or Htaxpa(er./ In eit!er case, !e !as to ade<uatel(s!o' t!at !e is entitled to see$ =udicial protection. In ot!er 'ords, !e !as to &a$e out a su""icient interest in t!e vindication o" t!epu#lic order and t!e securin% o" relie" as a /citi5en/ or /taxpa(er.

Case la' in &ost =urisdictions no' allo's #ot! /citi5en/ and /taxpa(er/ standin% in pu#lic actions. !e distinction 'as "irst laid do'nin )eauchamp v. il* , '!ere it 'as !eld t!at t!e plainti"" in a taxpa(erBs suit is in a di""erent cate%or( "ro& t!e plainti"" in a citi5enBs

suit. In t!e "or&er, t!e plainti"" is a""ected #( t!e expenditure o" pu#lic "unds, '!ile in t!e latter, !e is #ut t!e &ere instru&ent o" t!epu#lic concern. 6s !eld #( t!e Ne' or$ Supre&e Court in People e+ rel Case v. Collins> /In &atter o" &ere pu#lic ri%!t, !o'evert!e people are t!e real partiesIt is at least t!e ri%!t, i" not t!e dut(, o" ever( citi5en to inter"ere and see t!at a pu#lic o""ence #eproperl( pursued and punis!ed, and t!at a pu#lic %rievance #e re&edied./ it! respect to taxpa(erBs suits, err v. -ordan !eld t!at/t!e ri%!t o" a citi5en and a taxpa(er to &aintain an action in courts to restrain t!e unla'"ul use o" pu#lic "unds to !is in=ur( cannot #edenied./

:o'ever, to prevent =ust a#out an( person "ro& see$in% =udicial inter"erence in an( o""icial polic( or act 'it! '!ic! !e disa%reed'it!, and t!us !inders t!e activities o" %overn&ental a%encies en%a%ed in pu#lic service, t!e nited State Supre&e Court laid do'nt!e &ore strin%ent /-rec Er;/ e in &+ Parte (evitt , later rea""ir&ed inileston v. llman. !e sa&e Court ruled t!at "or aprivate individual to invo$e t!e =udicial po'er to deter&ine t!e validit( o" an executive or le%islative action, =e m =o4 =+ =e=+ +e- + -rec Er; + + re o =+ +co, +- o ce =+ =e =+ + 6eer+ ere commo o +member o =e :bc.

!is Court adopted t!e "-rec Er;" e in our =urisdiction. In People v. /era, it !eld t!at t!e person '!o i&pu%ns t!e validit( o"

a statute &ust !ave /+ :ero+ +- b++ ere =e c+e c= =+ =e =+ +e-, or 4 + -rec Er;+ + re./ !e /era doctrine 'as up!eld in a litan( o" cases, suc! as, Custodio v. President of the enate, 0anila 'ace 1orserainers2 %ssociation v. 3e la 4uente, Pascual v. ecretary of Public Wor*s and %nti5Chinese (eague of the Philippines v.4eli+. KE&p!ases included. Citations o&ittedG

Not'it!standin%, t!e Court leans on t!e doctrine t!at /t!e rule on standin% is a &atter o" procedure, !ence, can #e relaxed "ornontraditional plainti""s li$e ordinar( citi5ens, taxpa(ers, and le%islators '!en t!e pu#lic interest so re<uires, suc! as '!en t!e&atter is o" transcendental i&portance, o" overreac!in% si%ni"icance to societ(, or o" para&ount pu#lic interest./)

!us, in Coconut Oil Re"iners 6ssociation, Inc. v. orres,)8 t!e Court !eld t!at in cases o" para&ount i&portance '!ere seriousconstitutional <uestions are involved, t!e standin% re<uire&ents &a( #e relaxed and a suit &a( #e allo'ed to prosper even '!eret!ere is no direct in=ur( to t!e part( clai&in% t!e ri%!t o" =udicial revie'. In t!e "irst E&er%enc( Po'ers Cases,)9 ordinar( citi5ens andtaxpa(ers 'ere allo'ed to <uestion t!e constitutionalit( o" several executive orders alt!ou%! t!e( !ad onl( an indirect and %eneralinterest s!ared in co&&on 'it! t!e pu#lic.

!e OS0 clai&s t!at t!e deter&inants o" transcendental i&portance)@

laid do'n in CRE26 v. ERC and ;eralco)

are non-existent int!is case. !e Court, !o'ever, "inds reason in 2irao%oBs assertion t!at t!e petition covers &atters o" transcendental i&portance to =usti"( t!e exercise o" =urisdiction #( t!e Court. !ere are constitutional issues in t!e petition '!ic! deserve t!e attention o" t!isCourt in vie' o" t!eir seriousness, novelt( and 'ei%!t as precedents. !ere t!e issues are o" transcendental and para&ounti&portance not onl( to t!e pu#lic #ut also to t!e 2enc! and t!e 2ar, t!e( s!ould #e resolved "or t!e %uidance o" all.* ndou#tedl(,t!e ilipino people are &ore t!an interested to $no' t!e status o" t!e PresidentBs "irst e""ort to #rin% a#out a pro&ised c!an%e to t!ecountr(. !e Court ta$es co%ni5ance o" t!e petition not due to over'!el&in% political undertones t!at clot!e t!e issue in t!e e(es o"t!e pu#lic, #ut #ecause t!e Court stands "ir& in its oat! to per"or& its constitutional dut( to settle le%al controversies 'it!overreac!in% si%ni"icance to societ(.

Po'er o" t!e President to Create t!e rut! Co&&ission

In !is &e&orandu& in 0.R. No. 1)*, 2irao%o asserts t!at t!e rut! Co&&ission is a pu#lic o""ice and not &erel( an ad=unct#od( o" t!e O""ice o" t!e President.*1 !us, in order t!at t!e President &a( create a pu#lic o""ice !e &ust #e e&po'ered #( t!eConstitution, a statute or an aut!ori5ation vested in !i& #( la'. 6ccordin% to petitioner, suc! po'er cannot #e presu&ed*) sincet!ere is no provision in t!e Constitution or an( speci"ic la' t!at aut!ori5es t!e President to create a trut! co&&ission.** :e adds t!at

Section *1 o" t!e 6d&inistrative Code o" 1@9, %rantin% t!e President t!e continuin% aut!orit( to reor%ani5e !is o""ice, cannot serveas #asis "or t!e creation o" a trut! co&&ission considerin% t!e a"oresaid provision &erel( uses ver#s suc! as /reor%ani5e,//trans"er,/ /consolidate,/ /&er%e,/ and /a#olis!./*+ Inso"ar as it vests in t!e President t!e plenar( po'er to reor%ani5e t!e O""ice o"t!e President to t!e extent o" creatin% a pu#lic o""ice, Section *1 is inconsistent 'it! t!e principle o" separation o" po'ers ens!rinedin t!e Constitution and &ust #e dee&ed repealed upon t!e e""ectivit( t!ereo".*

Si&ilarl(, in 0.R. No. 1**8, petitioners-le%islators ar%ue t!at t!e creation o" a pu#lic o""ice lies 'it!in t!e province o" Con%ressand not 'it! t!e executive #ranc! o" %overn&ent. !e( &aintain t!at t!e dele%ated aut!orit( o" t!e President to reor%ani5e underSection *1 o" t!e Revised 6d&inistrative Code> 14 does not per&it t!e President to create a pu#lic o""ice, &uc! less a trut!co&&issionA )4 is li&ited to t!e reor%ani5ation o" t!e ad&inistrative structure o" t!e O""ice o" t!e PresidentA *4 is li&ited to t!erestructurin% o" t!e internal or%ans o" t!e O""ice o" t!e President Proper, trans"er o" "unctions and trans"er o" a%enciesA and +4 onl( to































8/13/2019 G.R. No. 192935 December 7, 2010


ac!ieve si&plicit(, econo&( and e""icienc(.*8 Suc! continuin% aut!orit( o" t!e President to reor%ani5e !is o""ice is li&ited, and #(issuin% Executive Order No. 1, t!e President overstepped t!e li&its o" t!is dele%ated aut!orit(.

!e OS0 counters t!at t!ere is not!in% exclusivel( le%islative a#out t!e creation #( t!e President o" a "act-"indin% #od( suc! as atrut! co&&ission. Pointin% to nu&erous o""ices created #( past presidents, it ar%ues t!at t!e aut!orit( o" t!e President to createpu#lic o""ices 'it!in t!e O""ice o" t!e President Proper !as lon% #een reco%ni5ed.*9 6ccordin% to t!e OS0, t!e Executive, =ust li$et!e ot!er t'o #ranc!es o" %overn&ent, possesses t!e in!erent aut!orit( to create "act-"indin% co&&ittees to assist it in t!eper"or&ance o" its constitutionall( &andated "unctions and in t!e exercise o" its ad&inistrative "unctions.*@ !is po'er, as t!e OS0

explains it, is #ut an ad=unct o" t!e plenar( po'ers 'ielded #( t!e President under Section 1 and !is po'er o" control under Section19, #ot! o" 6rticle 7II o" t!e Constitution.*

It contends t!at t!e President is necessaril( vested 'it! t!e po'er to conduct "act-"indin% investi%ations, pursuant to !is dut( toensure t!at all la's are en"orced #( pu#lic o""icials and e&plo(ees o" !is depart&ent and in t!e exercise o" !is aut!orit( to assu&edirectl( t!e "unctions o" t!e executive depart&ent, #ureau and o""ice, or inter"ere 'it! t!e discretion o" !is o""icials.+ !e po'er o"t!e President to investi%ate is not li&ited to t!e exercise o" !is po'er o" control over !is su#ordinates in t!e executive #ranc!, #utextends "urt!er in t!e exercise o" !is ot!er po'ers, suc! as !is po'er to discipline su#ordinates,+1 !is po'er "or rule &a$in%,ad=udication and licensin% purposes+) and in order to #e in"or&ed on &atters '!ic! !e is entitled to $no'.+*

!e OS0 also cites t!e recent case o" 2anda v. Er&ita,++ '!ere it 'as !eld t!at t!e President !as t!e po'er to reor%ani5e t!eo""ices and a%encies in t!e executive depart&ent in line 'it! !is constitutionall( %ranted po'er o" control and #( virtue o" a validdele%ation o" t!e le%islative po'er to reor%ani5e executive o""ices under existin% statutes.

!us, t!e OS0 concludes t!at t!e po'er o" control necessaril( includes t!e po'er to create o""ices. or t!e OS0, t!e President

&a( create t!e PC in order to, a&on% ot!ers, put a closure to t!e reported lar%e scale %ra"t and corruption in t!e %overn&ent.+

!e <uestion, t!ere"ore, #e"ore t!e Court is t!is> Does t!e creation o" t!e PC "all 'it!in t!e a&#it o" t!e po'er to reor%ani5e asexpressed in Section *1 o" t!e Revised 6d&inistrative Code Section *1 conte&plates /reor%ani5ation/ as li&ited #( t!e "ollo'in%"unctional and structural lines> 314 restructurin% t!e internal or%ani5ation o" t!e O""ice o" t!e President Proper #( a#olis!in%,consolidatin% or &er%in% units t!ereo" or trans"errin% "unctions "ro& one unit to anot!erA 3)4 trans"errin% an( "unction under t!eO""ice o" t!e President to an( ot!er Depart&entF6%enc( or vice versaA or 3*4 trans"errin% an( a%enc( under t!e O""ice o" t!ePresident to an( ot!er Depart&entF6%enc( or vice versa. Clearl(, t!e provision re"ers to reduction o" personnel, consolidation o"o""ices, or a#olition t!ereo" #( reason o" econo&( or redundanc( o" "unctions. !ese point to situations '!ere a #od( or an o""ice isalread( existent #ut a &odi"ication or alteration t!ereo" !as to #e e""ected. !e creation o" an o""ice is no'!ere &entioned, &uc!less envisioned in said provision. 6ccordin%l(, t!e ans'er to t!e <uestion is in t!e ne%ative.

o sa( t!at t!e PC is #orne out o" a restructurin% o" t!e O""ice o" t!e President under Section *1 is a &isplaced supposition, evenin t!e plainest &eanin% attri#uta#le to t!e ter& /restructure/ an /alteration o" an existin% structure./ Evidentl(, t!e PC 'as not parto" t!e structure o" t!e O""ice o" t!e President prior to t!e enact&ent o" Executive Order No. 1. 6s !eld in 2u$lod n% Ma'anin% EII2 v.

:on. Executive Secretar(,+8

2ut o" course, t!e list o" le%al #asis aut!ori5in% t!e President to reor%ani5e an( depart&ent or a%enc( in t!e executive #ranc! doesnot !ave to end !ere. e &ust not lose si%!t o" t!e ver( source o" t!e po'er t!at '!ic! constitutes an express %rant o" po'er.nder Section *1, 2oo$ III o" Executive Order No. )) 3ot!er'ise $no'n as t!e 6d&inistrative Code o" 1@94, /t!e President,su#=ect to t!e polic( in t!e Executive O""ice and in order to ac!ieve si&plicit(, econo&( and e""icienc(, s!all !ave t!e continuin%aut!orit( to reor%ani5e t!e ad&inistrative structure o" t!e O""ice o" t!e President./ or t!is purpose, !e &a( trans"er t!e "unctions o"ot!er Depart&ents or 6%encies to t!e O""ice o" t!e President. In Canoni5ado v. 6%uirre K*)* SCR6 *1) 3)4G, 'e ruled t!atreor%ani5ation /involves t!e reduction o" personnel, consolidation o" o""ices, or a#olition t!ereo" #( reason o" econo&( orredundanc( o" "unctions./ It ta$es place '!en t!ere is an alteration o" t!e existin% structure o" %overn&ent o""ices or units t!erein,includin% t!e lines o" control, aut!orit( and responsi#ilit( #et'een t!e&. !e EII2 is a #ureau attac!ed to t!e Depart&ent o"inance. It "alls under t!e O""ice o" t!e President. :ence, it is su#=ect to t!e PresidentBs continuin% aut!orit( to reor%ani5e.KE&p!asis SuppliedG

In t!e sa&e vein, t!e creation o" t!e PC is not =usti"ied #( t!e PresidentBs po'er o" control. Control is essentiall( t!e po'er to alteror &odi"( or nulli"( or set aside '!at a su#ordinate o""icer !ad done in t!e per"or&ance o" !is duties and to su#stitute t!e =ud%&ent

o" t!e "or&er 'it! t!at o" t!e latter.+9 Clearl(, t!e po'er o" control is entirel( di""erent "ro& t!e po'er to create pu#lic o""ices. !e"or&er is in!erent in t!e Executive, '!ile t!e latter "inds #asis "ro& eit!er a valid dele%ation "ro& Con%ress, or !is in!erent dut( to"ait!"ull( execute t!e la's.

!e <uestion is t!is, is t!ere a valid dele%ation o" po'er "ro& Con%ress, e&po'erin% t!e President to create a pu#lic o""ice

6ccordin% to t!e OS0, t!e po'er to create a trut! co&&ission pursuant to t!e a#ove provision "inds statutor( #asis under P.D.1+18, as a&ended #( P.D. No. 199).+@ !e said la' %ranted t!e President t!e continuin% aut!orit( to reor%ani5e t!e national%overn&ent, includin% t!e po'er to %roup, consolidate #ureaus and a%encies, to a#olis! o""ices, to trans"er "unctions, to create andclassi"( "unctions, services and activities, trans"er appropriations, and to standardi5e salaries and &aterials. !is decree, in relationto Section ), itle I, 2oo$ III o" E.O. )) !as #een invo$ed in several cases suc! as Larin v. Executive Secretar(.+








































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!e Court, !o'ever, declines to reco%ni5e P.D. No. 1+18 as a =usti"ication "or t!e President to create a pu#lic o""ice. Said decree isalread( stale, anac!ronistic and inopera#le. P.D. No. 1+18 'as a dele%ation to t!en President ;arcos o" t!e aut!orit( to reor%ani5et!e ad&inistrative structure o" t!e national %overn&ent includin% t!e po'er to create o""ices and trans"er appropriations pursuant toone o" t!e purposes o" t!e decree, e&#odied in its last /!ereas/ clause>

:ERE6S, t!e transition to'ards t!e parlia&entar( "or& o" %overn&ent 'ill necessitate "lexi#ilit( in t!e or%ani5ation o" t!enational %overn&ent.

Clearl(, as it 'as onl( "or t!e purpose o" providin% &ana%ea#ilit( and resilienc( durin% t!e interi&, P.D. No. 1+18, as a&ended #(P.D. No. 199), #eca&e "unctus o"icio upon t!e convenin% o" t!e irst Con%ress, as expressl( provided in Section 8, 6rticle ?7III o"t!e 1@9 Constitution. In "act, even t!e Solicitor 0eneral a%rees 'it! t!is vie'. !us>

6SSOCI6E JSICE C6RPIO> 2ecause P.D. 1+18 'as enacted 'as t!e last '!ereas clause o" P.D. 1+18 sa(s /it 'as enacted toprepare t!e transition "ro& presidential to parlia&entar(. No', in a parlia&entar( "or& o" %overn&ent, t!e le%islative and executivepo'ers are "used, correct

SOLICIOR 0ENER6L C6DI> es, our :onor.

6SSOCI6E JSICE C6RPIO> !at is '!(, t!at P.D. 1+18 'as issued. No' 'ould (ou a%ree 'it! &e t!at P.D. 1+18 s!ould not#e considered e""ective an(&ore upon t!e pro&ul%ation, adoption, rati"ication o" t!e 1@9 Constitution.

SOLICIOR 0ENER6L C6DI> Not t!e '!ole o" P.D. KNo.G 1+18, our :onor.

6SSOCI6E JSICE C6RPIO> !e po'er o" t!e President to reor%ani5e t!e entire National 0overn&ent is dee&ed repealed, atleast, upon t!e adoption o" t!e 1@9 Constitution, correct.

SOLICIOR 0ENER6L C6DI> es, our :onor .

!ile t!e po'er to create a trut! co&&ission cannot pass &uster on t!e #asis o" P.D. No. 1+18 as a&ended #( P.D. No. 199), t!ecreation o" t!e PC "inds =usti"ication under Section 19, 6rticle 7II o" t!e Constitution, i&posin% upon t!e President t!e dut( toensure t!at t!e la's are "ait!"ull( executed. Section 19 reads>

Section 19. !e President s!all !ave control o" all t!e executive depart&ents, #ureaus, and o""ices. :e s!all ensure t!at t!e la's #e"ait!"ull( executed. 3E&p!asis supplied4.

6s correctl( pointed out #( t!e respondents, t!e allocation o" po'er in t!e t!ree principal #ranc!es o" %overn&ent is a %rant o" all

po'ers in!erent in t!e&. !e PresidentBs po'er to conduct investi%ations to aid !i& in ensurin% t!e "ait!"ul execution o" la's int!is case, "unda&ental la's on pu#lic accounta#ilit( and transparenc( is in!erent in t!e PresidentBs po'ers as t!e C!ie"Executive. !at t!e aut!orit( o" t!e President to conduct investi%ations and to create #odies to execute t!is po'er is not explicitl(&entioned in t!e Constitution or in statutes does not &ean t!at !e is #ere"t o" suc! aut!orit(.1 6s explained in t!e land&ar$ case o";arcos v. ;an%lapus>)

x x x. !e 1@9 Constitution, !o'ever, #rou%!t #ac$ t!e presidential s(ste& o" %overn&ent and restored t!e separation o"le%islative, executive and =udicial po'ers #( t!eir actual distri#ution a&on% t!ree distinct #ranc!es o" %overn&ent 'it! provision "orc!ec$s and #alances.

It 'ould not #e accurate, !o'ever, to state t!at /executive po'er/ is t!e po'er to en"orce t!e la's, "or t!e President is !ead o" stateas 'ell as !ead o" %overn&ent and '!atever po'ers in!ere in suc! positions pertain to t!e o""ice unless t!e Constitution itsel"'it!!olds it. urt!er&ore, t!e Constitution itsel" provides t!at t!e execution o" t!e la's is onl( one o" t!e po'ers o" t!e President. Italso %rants t!e President ot!er po'ers t!at do not involve t!e execution o" an( provision o" la', e.%., !is po'er over t!e countr(s"orei%n relations.

On t!ese pre&ises, 'e !old t!e vie' t!at alt!ou%! t!e 1@9 Constitution i&poses li&itations on t!e exercise o" :ecc po'ers o"t!e President, it &aintains intact '!at is traditionall( considered as 'it!in t!e scope o" /executive po'er./ Corollaril(, t!e po'ers o"t!e President cannot #e said to #e li&ited onl( to t!e speci"ic po'ers enu&erated in t!e Constitution. In ot!er 'ords, executivepo'er is &ore t!an t!e su& o" speci"ic po'ers so enu&erated.

It !as #een advanced t!at '!atever po'er in!erent in t!e %overn&ent t!at is neit!er le%islative nor =udicial !as to #e executive. x xx.

Indeed, t!e Executive is %iven &uc! lee'a( in ensurin% t!at our la's are "ait!"ull( executed. 6s stated a#ove, t!e po'ers o" t!ePresident are not li&ited to t!ose speci"ic po'ers under t!e Constitution.* One o" t!e reco%ni5ed po'ers o" t!e President %ranted













8/13/2019 G.R. No. 192935 December 7, 2010


pursuant to t!is constitutionall(-&andated dut( is t!e po'er to create ad !oc co&&ittees. !is "lo's "ro& t!e o#vious need toascertain "acts and deter&ine i" la's !ave #een "ait!"ull( executed. !us, in 3epartment of 1ealth v. Camposano,+ t!e aut!orit( o"t!e President to issue 6d&inistrative Order No. )@, creatin% an investi%ative co&&ittee to loo$ into t!e ad&inistrative c!ar%es "ileda%ainst t!e e&plo(ees o" t!e Depart&ent o" :ealt! "or t!e ano&alous purc!ase o" &edicines 'as up!eld. In said case, it 'as ruled>

T=e C=e !<eceF :o4er o cre+e =e A- =oc Ie6+6 Commee c+o be -obe-. :avin% #een constitutionall(%ranted "ull control o" t!e Executive Depart&ent, to '!ic! respondents #elon%, t!e President !as t!e o#li%ation to ensure t!at allexecutive o""icials and e&plo(ees "ait!"ull( co&pl( 'it! t!e la'. it! 6O )@ as &andate, t!e le%alit( o" t!e investi%ation is

sustained. Suc! validit( is not a""ected #( t!e "act t!at t!e investi%atin% tea& and t!e PC60C !ad t!e sa&e co&position, or t!at t!e"or&er used t!e o""ices and "acilities o" t!e latter in conductin% t!e in<uir(. KE&p!asis suppliedG

It s!ould #e stressed t!at t!e purpose o" allo'in% ad !oc investi%atin% #odies to exist is to allo' an in<uir( into &atters '!ic! t!ePresident is entitled to $no' so t!at !e can #e properl( advised and %uided in t!e per"or&ance o" !is duties relative to t!e executionand en"orce&ent o" t!e la's o" t!e land. 6nd i" !istor( is to #e revisited, t!is 'as also t!e o#=ective o" t!e investi%ative #odiescreated in t!e past li$e t!e PC6C, PC6PE, P6R0O, t!e eliciano Co&&ission, t!e ;elo Co&&ission and t!e enarosaCo&&ission. !ere #ein% no c!an%es in t!e %overn&ent structure, t!e Court is not inclined to declare suc! executive po'er as non-existent =ust #ecause t!e direction o" t!e political 'inds !ave c!an%ed.

On t!e c!ar%e t!at Executive Order No. 1 trans%resses t!e po'er o" Con%ress to appropriate "unds "or t!e operation o" a pu#lico""ice, su""ice it to sa( t!at t!ere 'ill #e no appropriation #ut onl( an allot&ent or allocations o" existin% "unds alread( appropriated.

6ccordin%l(, t!ere is no usurpation on t!e part o" t!e Executive o" t!e po'er o" Con%ress to appropriate "unds. urt!er, t!ere is noneed to speci"( t!e a&ount to #e ear&ar$ed "or t!e operation o" t!e co&&ission #ecause, in t!e 'ords o" t!e Solicitor 0eneral,/'!atever "unds t!e Con%ress !as provided "or t!e O""ice o" t!e President 'ill #e t!e ver( source o" t!e "unds "or t!e

co&&ission./

;oreover, since t!e a&ount t!at 'ould #e allocated to t!e PC s!all #e su#=ect to existin% auditin% rules andre%ulations, t!ere is no i&propriet( in t!e "undin%.

o4er o =e Tr= Commo o Ie6+e

!e PresidentBs po'er to conduct investi%ations to ensure t!at la's are "ait!"ull( executed is 'ell reco%ni5ed. It "lo's "ro& t!e"ait!"ul-execution clause o" t!e Constitution under 6rticle 7II, Section 19 t!ereo" .8 6s t!e C!ie" Executive, t!e president representst!e %overn&ent as a '!ole and sees to it t!at all la's are en"orced #( t!e o""icials and e&plo(ees o" !is depart&ent. :e !as t!eaut!orit( to directl( assu&e t!e "unctions o" t!e executive depart&ent.9

Invo$in% t!is aut!orit(, t!e President constituted t!e PC to pri&aril( investi%ate reports o" %ra"t and corruption and to reco&&endt!e appropriate action. 6s previousl( stated, no <uasi-=udicial po'ers !ave #een vested in t!e said #od( as it cannot ad=udicateri%!ts o" persons '!o co&e #e"ore it. It !as #een said t!at /uasi-=udicial po'ers involve t!e po'er to !ear and deter&ine<uestions o" "act to '!ic! t!e le%islative polic( is to appl( and to decide in accordance 'it! t!e standards laid do'n #( la' itsel" inen"orcin% and ad&inisterin% t!e sa&e la'./@ In si&pler ter&s, =udicial discretion is involved in t!e exercise o" t!ese <uasi-=udicial

po'er, suc! t!at it is exclusivel( vested in t!e =udiciar( and &ust #e clearl( aut!ori5ed #( t!e le%islature in t!e case o"ad&inistrative a%encies.

!e distinction #et'een t!e po'er to investi%ate and t!e po'er to ad=udicate 'as delineated #( t!e Court in CariQo v. Co&&issionon :u&an Ri%!ts. !us>

"6nvestigate," co&&onl( understood, &eans to exa&ine, explore, in<uire or delve or pro#e into, researc! on, stud(. !e dictionar(de"inition o" /investi%ate/ is /to o#serve or stud( closel(> in<uire into s(ste&aticall(> /to searc! or in<uire into> x x to su#=ect to ano""icial pro#e x x> to conduct an o""icial in<uir(./ !e purpose o" investi%ation, o" course, is to discover, to "ind out, to learn, o#tainin"or&ation. No'!ere included or inti&ated is t!e notion o" settlin%, decidin% or resolvin% a controvers( involved in t!e "acts in<uiredinto #( application o" t!e la' to t!e "acts esta#lis!ed #( t!e in<uir(.

!e le%al &eanin% o" /investi%ate/ is essentiall( t!e sa&e> /3t4o "ollo' up step #( step #( patient in<uir( or o#servation. o trace ortrac$A to searc! intoA to exa&ine and in<uire into 'it! care and accurac(A to "ind out #( care"ul in<uisitionA exa&inationA t!e ta$in% o"evidenceA a le%al in<uir(A/ /to in<uireA to &a$e an investi%ation,/ /investi%ation/ #ein% in turn descri#ed as /3a4n ad&inistrative

"unction, t!e exercise o" '!ic! ordinaril( does not re<uire a !earin%. ) 6& J)d 6d& L Sec. )9A x x an in<uir(, =udicial or ot!er'ise,"or t!e discover( and collection o" "acts concernin% a certain &atter or &atters./

"%djudicate," co&&onl( or popularl( understood, &eans to ad=ud%e, ar#itrate, =ud%e, decide, deter&ine, resolve, rule on, settle. !edictionar( de"ines t!e ter& as /to settle "inall( 3t!e ri%!ts and duties o" t!e parties to a court case4 on t!e &erits o" issues raised> x xto pass =ud%&ent on> settle =udiciall(> x x act as =ud%e./ 6nd /ad=ud%e/ &eans /to decide or rule upon as a =ud%e or 'it! =udicial or<uasi-=udicial po'ers> x x to a'ard or %rant =udiciall( in a case o" controvers( x x./

In t!e le%al sense, /ad=udicate/ &eans> /o settle in t!e exercise o" =udicial aut!orit(. o deter&ine "inall(. S(non(&ous'it! adjudge in its strictest senseA/ and /ad=ud%e/ &eans> /o pass on =udiciall(, to decide, settle or decree, or to sentence orconde&n. x x. I&plies a =udicial deter&ination o" a "act, and t!e entr( o" a =ud%&ent./ KItalics included. Citations O&ittedG




















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act-"indin% is not ad=udication and it cannot #e li$ened to t!e =udicial "unction o" a court o" =ustice, or even a <uasi-=udicial a%enc( oro""ice. !e "unction o" receivin% evidence and ascertainin% t!ere"ro& t!e "acts o" a controvers( is not a =udicial "unction. o #econsidered as suc!, t!e act o" receivin% evidence and arrivin% at "actual conclusions in a controvers( &ust #e acco&panied #( t!eaut!orit( o" appl(in% t!e la' to t!e "actual conclusions to t!e end t!at t!e controvers( &a( #e decided or resolved aut!oritativel(,"inall( and de"initivel(, su#=ect to appeals or &odes o" revie' as &a( #e provided #( la'.8 Even respondents t!e&selves ad&it t!att!e co&&ission is #ere"t o" an( <uasi-=udicial po'er.81

Contrar( to petitionersB appre!ension, t!e PC 'ill not supplant t!e O&#uds&an or t!e DOJ or erode t!eir respective po'ers. I" at

all, t!e investi%ative "unction o" t!e co&&ission 'ill co&ple&ent t!ose o" t!e t'o o""ices. 6s pointed out #( t!e Solicitor 0eneral, t!ereco&&endation to prosecute is #ut a conse<uence o" t!e overall tas$ o" t!e co&&ission to conduct a "act-"indin%investi%ation./8) !e actual prosecution o" suspected o""enders, &uc! less ad=udication on t!e &erits o" t!e c!ar%es a%ainstt!e&,8* is certainl( not a "unction %iven to t!e co&&ission. !e p!rase, /'!en in t!e course o" its investi%ation,/ under Section )3%4,!i%!li%!ts t!is "act and %ives credence to a contrar( interpretation "ro& t!at o" t!e petitioners. !e "unction o" deter&inin% pro#a#lecause "or t!e "ilin% o" t!e appropriate co&plaints #e"ore t!e courts re&ains to #e 'it! t!e DOJ and t!e O&#uds&an.8+

6t an( rate, t!e O&#uds&anBs po'er to investi%ate under R.6. No. 899 is not exclusive #ut is s!ared 'it! ot!er si&ilarl(aut!ori5ed %overn&ent a%encies. !us, in t!e case o" O&#uds&an v. 0alicia,8 it 'as 'ritten>

!is po'er o" investi%ation %ranted to t!e O&#uds&an #( t!e 1@9 Constitution and !e O&#uds&an 6ct is not exclusive #ut iss!ared 'it! ot!er si&ilarl( aut!ori5ed %overn&ent a%encies suc! as t!e PC00 and =ud%es o" &unicipal trial courts and &unicipalcircuit trial courts. !e po'er to conduct preli&inar( investi%ation on c!ar%es a%ainst pu#lic e&plo(ees and o""icials is li$e'iseconcurrentl( s!ared 'it! t!e Depart&ent o" Justice. Despite t!e passa%e o" t!e Local 0overn&ent Code in 11, t!e O&#uds&anretains concurrent =urisdiction 'it! t!e O""ice o" t!e President and t!e local San%%unians to investi%ate co&plaints a%ainst local

elective o""icials. KE&p!asis suppliedG.

6lso, Executive Order No. 1 cannot contravene t!e po'er o" t!e O&#uds&an to investi%ate cri&inal cases under Section 1 314 o"R.6. No. 899, '!ic! states>

314 Investi%ate and prosecute on its o'n or on co&plaint #( an( person, an( act or o&ission o" an( pu#lic o""icer or e&plo(ee, o""iceor a%enc(, '!en suc! act or o&ission appears to #e ille%al, un=ust, i&proper or ine""icient. It !as pri&ar( =urisdiction over casesco%ni5a#le #( t!e Sandi%an#a(an and, in t!e exercise o" its pri&ar( =urisdiction, it &a( ta$e over, at an( sta%e, "ro& an(investi%ator( a%enc( o" %overn&ent, t!e investi%ation o" suc! cases. KE&p!ases suppliedG

!e act o" investi%ation #( t!e O&#uds&an as enunciated a#ove conte&plates t!e conduct o" a preli&inar( investi%ation or t!edeter&ination o" t!e existence o" pro#a#le cause. !is is cate%oricall( out o" t!e PCBs sp!ere o" "unctions. Its po'er to investi%ateis li&ited to o#tainin% "acts so t!at it can advise and %uide t!e President in t!e per"or&ance o" !is duties relative to t!e executionand en"orce&ent o" t!e la's o" t!e land. In t!is re%ard, t!e PC co&&its no act o" usurpation o" t!e O&#uds&anBs pri&ordialduties.

!e sa&e !olds true 'it! respect to t!e DOJ. Its aut!orit( under Section * 3)4, C!apter 1, itle III, 2oo$ I7 in t!e Revised 6d&inistrative Code is #( no &eans exclusive and, t!us, can #e s!ared 'it! a #od( li$e'ise tas$ed to investi%ate t!e co&&ission o"cri&es.

inall(, no'!ere in Executive Order No. 1 can it #e in"erred t!at t!e "indin%s o" t!e PC are to #e accorded conclusiveness. ;uc!li$e its predecessors, t!e Davide Co&&ission, t!e eliciano Co&&ission and t!e enarosa Co&&ission, its "indin%s 'ould, at #est,#e reco&&endator( in nature. 6nd #ein% so, t!e O&#uds&an and t!e DOJ !ave a 'ider de%ree o" latitude to decide '!et!er or notto re=ect t!e reco&&endation. !ese o""ices, t!ere"ore, are not deprived o" t!eir &andated duties #ut 'ill instead #e aided #( t!ereports o" t!e PC "or possi#le indict&ents "or violations o" %ra"t la's.

7iolation o" t!e E<ual Protection Clause

6lt!ou%! t!e purpose o" t!e rut! Co&&ission "alls 'it!in t!e investi%ative po'er o" t!e President, t!e Court "inds di""icult( inup!oldin% t!e constitutionalit( o" Executive Order No. 1 in vie' o" its apparent trans%ression o" t!e e<ual protection clause

ens!rined in Section 1, 6rticle III 32ill o" Ri%!ts4 o" t!e 1@9 Constitution. Section 1 reads>

Seco 1. No person s!all #e deprived o" li"e, li#ert(, or propert( 'it!out due process o" la', nor s!all an( person #e denied t!ee<ual protection o" t!e la's.

!e petitioners assail Executive Order No. 1 #ecause i t is violative o" t!is constitutional sa"e%uard. !e( contend t!at it does notappl( e<uall( to all &e&#ers o" t!e sa&e class suc! t!at t!e intent o" sin%lin% out t!e /previous ad&inistration/ as its sole o#=ect&a$es t!e PC an /adventure in partisan !ostilit(./88 !us, in order to #e accorded 'it! validit(, t!e co&&ission &ust also coverreports o" %ra"t and corruption in virtuall( all ad&inistrations previous to t!at o" "or&er President 6rro(o.89
























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!e petitioners ar%ue t!at t!e searc! "or trut! #e!ind t!e reported cases o" %ra"t and corruption &ust enco&pass acts co&&itted notonl( durin% t!e ad&inistration o" "or&er President 6rro(o #ut also durin% prior ad&inistrations '!ere t!e /sa&e &a%nitude o"controversies and ano&alies/8@ 'ere reported to !ave #een co&&itted a%ainst t!e ilipino people. !e( assail t!e classi"ication"or&ulated #( t!e respondents as it does not "all under t!e reco%ni5ed exceptions #ecause "irst, /t!ere is no su#stantial distinction#et'een t!e %roup o" o""icials tar%eted "or investi%ation #( Executive Order No. 1 and ot!er %roups or persons '!o a#used t!eirpu#lic o""ice "or personal %ainA and second, t!e selective classi"ication is not %er&ane to t!e purpose o" Executive Order No. 1 toend corruption./8 In order to attain constitutional per&ission, t!e petitioners advocate t!at t!e co&&ission s!ould deal 'it! /%ra"tand %ra"ters prior and su#se<uent to t!e 6rro(o ad&inistration 'it! t!e stron% ar& o" t!e la' 'it! e<ual "orce./9

Position o" respondents

6ccordin% to respondents, '!ile Executive Order No. 1 identi"ies t!e /previous ad&inistration/ as t!e initial su#=ect o" t!einvesti%ation, "ollo'in% Section 19 t!ereo", t!e PC 'ill not con"ine itsel" to cases o" lar%e scale %ra"t and corruption solel( durin%t!e said ad&inistration.91 6ssu&in% ar%uendo t!at t!e co&&ission 'ould con"ine its proceedin%s to o""icials o" t!e previousad&inistration, t!e petitioners ar%ue t!at no o""ense is co&&itted a%ainst t!e e<ual protection clause "or /t!e se%re%ation o" t!etransactions o" pu#lic o""icers durin% t!e previous ad&inistration as possi#le su#=ects o" investi%ation is a valid classi"ication #asedon su#stantial distinctions and is %er&ane to t!e evils '!ic! t!e Executive Order see$s to correct./9) o distin%uis! t!e 6rro(oad&inistration "ro& past ad&inistrations, it recited t!e "ollo'in%>

4irst . E.O. No. 1 'as issued in vie' o" widespread reports of large scale graft and corruption in t!e previous ad&inistration '!ic!!ave eroded pu#lic con"idence in pu#lic institutions. !ere is, t!ere"ore, an ur%ent call "or t!e deter&ination o" t!e trut! re%ardin%certain reports o" lar%e scale %ra"t and corruption in t!e %overn&ent and to put a closure to t!e& #( t!e "ilin% o" t!e appropriatecases a%ainst t!ose involved, i" 'arranted, and to deter ot!ers "ro& co&&ittin% t!e evil, restore t!e peopleBs "ait! and con"idence in

t!e 0overn&ent and in t!eir pu#lic servants.

econd. !e se%re%ation o" t!e precedin% ad&inistration as t!e o#=ect o" "act-"indin% is 'arranted #( t!e realit( t!at unli$e 'it!ad&inistrations lon% %one, t!e current ad&inistration 'ill &ost li$el( #ear t!e i&&ediate conse<uence o" t!e policies o" t!e previousad&inistration.

hird. !e classi"ication o" t!e previous ad&inistration as a separate class "or investi%ation lies in t!e realit( t!at t!e evidence o"possi#le cri&inal activit(, t!e evidence t!at could lead to recover( o" pu#lic &onies ille%all( dissipated, t!e polic( lessons to #elearned to ensure t!at anti-corruption la's are "ait!"ull( executed, are more easily established in t!e re%i&e t!at i&&ediatel(precede t!e current ad&inistration.

4ourth. ;an( ad&inistrations su#=ect t!e transactions o" t!eir predecessors to investi%ations to provide closure to issues t!at arepivotal to national li"e or even as a routine &easure o" due dili%ence and %ood !ouse$eepin% #( a nascent ad&inistration li$e t!ePresidential Co&&ission on 0ood 0overn&ent 3PC004, created #( t!e late President Cora5on C. 6<uino under Executive OrderNo. 1 to pursue t!e recover( o" ill-%otten 'ealt! o" !er predecessor "or&er President erdinand ;arcos and !is cronies, and t!e

Sa%uisa% Co&&ission created #( "or&er President Josep! Estrada under 6d&inistrative Order No, *, to "or& an ad-!oc andindependent citi5ensB co&&ittee to investi%ate all t!e "acts and circu&stances surroundin% /P!ilippine Centennial pro=ects/ o" !ispredecessor, "or&er President idel 7. Ra&os.9* KE&p!ases suppliedG

Concept o" t!e E<ual Protection Clause

One o" t!e #asic principles on '!ic! t!is %overn&ent 'as "ounded is t!at o" t!e e<ualit( o" ri%!t '!ic! is e&#odied in Section 1, 6rticle III o" t!e 1@9 Constitution. !e e<ual protection o" t!e la's is e&#raced in t!e concept o" due process, as ever( un"airdiscri&ination o""ends t!e re<uire&ents o" =ustice and "air pla(. It !as #een e&#odied in a separate clause, !o'ever, to provide "or a&ore speci"ic %uarant( a%ainst an( "or& o" undue "avoritis& or !ostilit( "ro& t!e %overn&ent. 6r#itrariness in %eneral &a( #ec!allen%ed on t!e #asis o" t!e due process clause. 2ut i" t!e particular act assailed parta$es o" an un'arranted partialit( orpre=udice, t!e s!arper 'eapon to cut it do'n is t!e e<ual protection clause.9+

/6ccordin% to a lon% line o" decisions, e<ual protection si&pl( re<uires t!at all persons or t!in%s si&ilarl( situated s!ould #e treatedali$e, #ot! as to ri%!ts con"erred and responsi#ilities i&posed./9 It /re<uires pu#lic #odies and institutions to treat si&ilarl( situated

individuals in a si&ilar &anner./98

/!e purpose o" t!e e<ual protection clause is to secure ever( person 'it!in a stateBs =urisdictiona%ainst intentional and ar#itrar( discri&ination, '!et!er occasioned #( t!e express ter&s o" a statue or #( its i&proper executiont!rou%! t!e stateBs dul( constituted aut!orities./99 /In ot!er 'ords, t!e concept o" e<ual =ustice under t!e la' re<uires t!e state to%overn i&partiall(, and it &a( not dra' distinctions #et'een individuals solel( on di""erences t!at are irrelevant to a le%iti&ate%overn&ental o#=ective./9@

!e e<ual protection clause is ai&ed at all o""icial state actions, not =ust t!ose o" t!e le%islature.9 Its in!i#itions cover all t!edepart&ents o" t!e %overn&ent includin% t!e political and executive depart&ents, and extend to all actions o" a state den(in% e<ualprotection o" t!e la's, t!rou%! '!atever a%enc( or '!atever %uise is ta$en. @

































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It, !o'ever, does not re<uire t!e universal application o" t!e la's to all persons or t!in%s 'it!out distinction. !at it si&pl( re<uiresis e<ualit( a&on% e<uals as deter&ined accordin% to a valid classi"ication. Indeed, t!e e<ual protection clause per&its classi"ication.Suc! classi"ication, !o'ever, to #e valid &ust pass t!e test o" reasonableness. !e test !as "our re<uisites> 314 !e classi"icationrests on su#stantial distinctionsA 3)4 It is %er&ane to t!e purpose o" t!e la'A 3*4 It is not li&ited to existin% conditions onl(A and

3+4 It applies e<uall( to all &e&#ers o" t!e sa&e class.@1 /Super"icial di""erences do not &a$e "or a valid classi"ication./@)

or a classi"ication to &eet t!e re<uire&ents o" constitutionalit(, it &ust include or e&#race all persons '!o naturall( #elon% to t!eclass.@* /!e classi"ication 'ill #e re%arded as invalid i" all t!e &e&#ers o" t!e class are not si&ilarl( treated, #ot! as to ri%!tscon"erred and o#li%ations i&posed. It is not necessar( t!at t!e classi"ication #e &ade 'it! a#solute s(&&etr(, in t!e sense t!at t!e&e&#ers o" t!e class s!ould possess t!e sa&e c!aracteristics in e<ual de%ree. Su#stantial si&ilarit( 'ill su""iceA and as lon% as t!isis ac!ieved, all t!ose covered #( t!e classi"ication are to #e treated e<uall(. !e &ere "act t!at an individual #elon%in% to a classdi""ers "ro& t!e ot!er &e&#ers, as lon% as t!at class is su#stantiall( distin%uis!a#le "ro& all ot!ers, does not =usti"( t!e non-application o" t!e la' to !i&./@+

!e classi"ication &ust not #e #ased on existin% circu&stances onl(, or so constituted as to preclude addition to t!e nu&#erincluded in t!e class. It &ust #e o" suc! a nature as to e&#race all t!ose '!o &a( t!erea"ter #e in si&ilar circu&stances andconditions. It &ust not leave out or /underinclude/ t!ose t!at s!ould ot!er'ise "all into a certain classi"ication. 6s elucidated in7ictoriano v. Eli5alde Rope or$ers nion@ and reiterated in a lon% line o" cases,@8

!e %uarant( o" e<ual protection o" t!e la's is not a %uarant( o" e<ualit( in t!e application o" t!e la's upon all citi5ens o" t!e state.It is not, t!ere"ore, a re<uire&ent, in order to avoid t!e constitutional pro!i#ition a%ainst ine<ualit(, t!at ever( &an, 'o&an and c!ilds!ould #e a""ected ali$e #( a statute. E<ualit( o" operation o" statutes does not &ean indiscri&inate operation on persons &erel( as

suc!, #ut on persons accordin% to t!e circu&stances surroundin% t!e&. It %uarantees e<ualit(, not identit( o" ri%!ts. !eConstitution does not re<uire t!at t!in%s '!ic! are di""erent in "act #e treated in la' as t!ou%! t!e( 'ere t!e sa&e. !e e<ualprotection clause does not "or#id discri&ination as to t!in%s t!at are di""erent. It does not pro!i#it le%islation '!ic! is li&ited eit!er int!e o#=ect to '!ic! it is directed or #( t!e territor( 'it!in '!ic! it is to operate.

!e e<ual protection o" t!e la's clause o" t!e Constitution allo's classi"ication. Classi"ication in la', as in t!e ot!er depart&ents o"$no'led%e or practice, is t!e %roupin% o" t!in%s in speculation or practice #ecause t!e( a%ree 'it! one anot!er in certain particulars.

6 la' is not invalid #ecause o" si&ple ine<ualit(. !e ver( idea o" classi"ication is t!at o" ine<ualit(, so t!at it %oes 'it!out sa(in%t!at t!e &ere "act o" ine<ualit( in no &anner deter&ines t!e &atter o" constitutionalit(. 6ll t!at is re<uired o" a valid classi"ication ist!at it #e reasona#le, '!ic! &eans t!at t!e classi"ication s!ould #e #ased on su#stantial distinctions '!ic! &a$e "or realdi""erences, t!at it &ust #e %er&ane to t!e purpose o" t!e la'A t!at it &ust not #e li&ited to existin% conditions onl(A and t!at it &ustappl( e<uall( to eac! &e&#er o" t!e class. !is Court !as !eld t!at t!e standard is satis"ied i" t!e classi"ication or distinction is#ased on a reasona#le "oundation or rational #asis and is not palpa#l( ar#itrar(. KCitations o&ittedG

6ppl(in% t!ese precepts to t!is case, Executive Order No. 1 s!ould #e struc$ do'n as violative o" t!e e<ual protection clause. !e

clear &andate o" t!e envisioned trut! co&&ission is to investi%ate and "ind out t!e trut! /concernin% t!e reported cases o" %ra"t andcorruption durin% t!e previous ad&inistration/@9 onl(. !e intent to sin%le out t!e previous ad&inistration is plain, patent and&ani"est. ;ention o" it !as #een &ade in at least t!ree portions o" t!e <uestioned executive order. Speci"icall(, t!ese are>

/!R!AS, t!ere is a need "or a separate #od( dedicated solel( to investi%atin% and "indin% out t!e trut! concernin% t!e reportedcases o" %ra"t and corruption durin% t!e previous ad&inistration, and '!ic! 'ill reco&&end t!e prosecution o" t!e o""enders andsecure =ustice "or allA



S!CTION 2. o4er +- $co. !e Co&&ission, '!ic! s!all !ave all t!e po'ers o" an investi%ative #od( under Section*9, C!apter , 2oo$ I o" t!e 6d&inistrative Code o" 1@9, is pri&aril( tas$ed to conduct a t!orou%! "act-"indin% investi%ation o"reported cases o" %ra"t and corruption re"erred to in Section 1, involvin% t!ird level pu#lic o""icers and !i%!er, t!eir co-principals,acco&plices and accessories "ro& t!e private sector, i" an(, durin% t!e previous ad&inistration and t!erea"ter su#&it its "indin% andreco&&endations to t!e President, Con%ress and t!e O&#uds&an. KE&p!ases suppliedG

In t!is re%ard, it &ust #e #orne in &ind t!at t!e 6rro(o ad&inistration is #ut =ust a &e&#er o" a class, t!at is, a class o" pastad&inistrations. It is not a class o" its o'n. Not to include past ad&inistrations si&ilarl( situated constitutes ar#itrariness '!ic! t!ee<ual protection clause cannot sanction. Suc! discri&inatin% di""erentiation clearl( rever#erates to la#el t!e co&&ission as a ve!icle"or vindictiveness and selective retri#ution.




















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!ou%! t!e OS0 enu&erates several di""erences #et'een t!e 6rro(o ad&inistration and ot!er past ad&inistrations, t!esedistinctions are not su#stantial enou%! to &erit t!e restriction o" t!e investi%ation to t!e /previous ad&inistration/ onl(. !e reports o"'idespread corruption in t!e 6rro(o ad&inistration cannot #e ta$en as #asis "or distin%uis!in% said ad&inistration "ro& earlierad&inistrations '!ic! 'ere also #le&is!ed #( si&ilar 'idespread reports o" i&propriet(. !e( are not in!erent in, and do not inuresolel( to, t!e 6rro(o ad&inistration. 6s Justice Isa%ani Cru5 put it, /Super"icial di""erences do not &a$e "or a valid classi"ication./@@

!e pu#lic needs to #e enli%!tened '!( Executive Order No. 1 c!ooses to li&it t!e scope o" t!e intended investi%ation to t!eprevious ad&inistration onl(. !e OS0 ventures to opine t!at /to include ot!er past ad&inistrations, at t!is point, &a( unnecessaril(

over#urden t!e co&&ission and lead it to lose its e""ectiveness./@ !e reason %iven is specious. It is 'it!out dou#t irrelevant to t!ele%iti&ate and no#le o#=ective o" t!e PC to sta&p out or /end corruption and t!e evil it #reeds./

!e pro#a#ilit( t!at t!ere 'ould #e di""icult( in uneart!in% evidence or t!at t!e earlier reports involvin% t!e earlier ad&inistrations'ere alread( in<uired into is #eside t!e point. O#viousl(, deceased presidents and cases '!ic! !ave alread( prescri#ed can nolon%er #e t!e su#=ects o" in<uir( #( t!e PC. Neit!er is t!e PC expected to conduct si&ultaneous investi%ations o" previousad&inistrations, %iven t!e #od(Bs li&ited ti&e and resources. /!e la' does not re<uire t!e i&possi#le/ (e+ non cogit adimpossibilia$.1

0iven t!e "ore%oin% p!(sical and le%al i&possi#ilit(, t!e Court lo%icall( reco%ni5es t!e un"easi#ilit( o" investi%atin% al&ost acentur(Bs 'ort! o" %ra"t cases. :o'ever, t!e "act re&ains t!at Executive Order No. 1 su""ers "ro& ar#itrar( classi"ication. !e PC,to #e true to its &andate o" searc!in% "or t!e trut!, &ust not exclude t!e ot!er past ad&inistrations. !e PC &ust, at least, !avet!e aut!orit( to investi%ate all past ad&inistrations. !ilere+o+be :ror+o is per&itted, it s!ould not #e ar#itrar( lest it #estruc$ do'n "or #ein% unconstitutional. In t!e o"ten <uoted lan%ua%e o" ic$ o v. :op$ins,)

!ou%! t!e la' itsel" #e "air on its "ace and i&partial in appearance, (et, i" applied and ad&inistered #( pu#lic aut!orit( 'it! an evile(e and an une<ual !and, so as practicall( to &a$e un=ust and ille%al discri&inations #et'een persons in si&ilar circu&stances,&aterial to t!eir ri%!ts, t!e denial o" e<ual =ustice is still 'it!in t!e pro!i#ition o" t!e constitution. KE&p!asis suppliedG

It could #e ar%ued t!at considerin% t!at t!e PC is an ad !oc #od(, its scope is li&ited. !e Court, !o'ever, is o" t!e consideredvie' t!at alt!ou%! its "ocus is restricted, t!e constitutional %uarantee o" e<ual protection under t!e la's s!ould not in an( 'a( #ecircu&vented. !e Constitution is t!e "unda&ental and para&ount la' o" t!e nation to '!ic! all ot!er la's &ust con"or& and inaccordance 'it! '!ic! all private ri%!ts deter&ined and all pu#lic aut!orit( ad&inistered.* La's t!at do not con"or& to t!eConstitution s!ould #e stric$en do'n "or #ein% unconstitutional.+ !ile t!e t!rust o" t!e PC is speci"ic, t!at is, "or investi%ation o"acts o" %ra"t and corruption, Executive Order No. 1, to survive, &ust #e read to%et!er 'it! t!e provisions o" t!e Constitution. oexclude t!e earlier ad&inistrations in t!e %uise o" /su#stantial distinctions/ 'ould onl( con"ir& t!e petitionersB la&ent t!at t!e su#=ectexecutive order is onl( an /adventure in partisan !ostilit(./ In t!e case o" v. Cyprian, it 'as 'ritten> /6 rat!er li&ited nu&#er o"suc! classi"ications !ave routinel( #een !eld or assu&ed to #e ar#itrar(A t!ose include> race, national ori%in, %ender, political activityor membership in a political party, union activit( or &e&#ers!ip in a la#or union, or &ore %enerall( t!e exercise o" "irst a&end&entri%!ts./

o reiterate, in order "or a classi"ication to &eet t!e re<uire&ents o" constitutionalit(, it &ust include or e&#race all persons '!onaturall( #elon% to t!e class.8 /Suc! a classi"ication &ust not #e #ased on existin% circu&stances onl(, or so constituted as topreclude additions to t!e nu&#er included 'it!in a class, #ut &ust #e o" suc! a nature as to e&#race all t!ose '!o &a( t!erea"ter#e in si&ilar circu&stances and conditions. urt!er&ore, all '!o are in situations and circu&stances '!ic! are relative to t!ediscri&inator( le%islation and '!ic! are indistin%uis!a#le "ro& t!ose o" t!e &e&#ers o" t!e class &ust #e #rou%!t under t!ein"luence o" t!e la' and treated #( it in t!e sa&e 'a( as are t!e &e&#ers o" t!e class./9

!e Court is not una'are t!at /&ere underinclusiveness is not "atal to t!e validit( o" a la' under t!e e<ual protectionclause./@ /Le%islation is not unconstitutional &erel( #ecause it is not all-e&#racin% and does not include all t!e evils 'it!in itsreac!./ It !as #een 'ritten t!at a re%ulation c!allen%ed under t!e e<ual protection clause is not devoid o" a rational predicatesi&pl( #ecause it !appens to #e inco&plete.1 In several instances, t!e underinclusiveness 'as not considered a valid reason tostri$e do'n a la' or re%ulation '!ere t!e purpose can #e attained in "uture le%islations or re%ulations. !ese cases re"er to t!e/step #( step/ process.11 /it! re%ard to e<ual protection clai&s, a le%islature does not run t!e ris$ o" losin% t!e entire re&edialsc!e&e si&pl( #ecause it "ails, t!rou%! inadvertence or ot!er'ise, to cover ever( evil t!at &i%!t conceiva#l( !ave #eenattac$ed./1)

In Executive Order No. 1, !o'ever, t!ere is no inadvertence. !at t!e previous ad&inistration 'as pic$ed out 'as deli#erate andintentional as can #e %leaned "ro& t!e "act t!at it 'as underscored at least t!ree ti&es in t!e assailed executive order. It &ust #enoted t!at Executive Order No. 1 does not even &ention an( particular act, event or report to #e "ocused on unli$e t!e investi%ativeco&&issions created in t!e past. /!e e<ual protection clause is violated #( purpose"ul and intentional discri&ination./1*

o disprove petitionersB contention t!at t!ere is deli#erate discri&ination, t!e OS0 clari"ies t!at t!e co&&ission does not onl(con"ine itsel" to cases o" lar%e scale %ra"t and corruption co&&itted durin% t!e previous ad&inistration.1+ !e OS0 points to Section19 o" Executive Order No. 1, '!ic! provides>
















































8/13/2019 G.R. No. 192935 December 7, 2010


SECION 19. Special Provision Concernin% ;andate. I" and '!en in t!e =ud%&ent o" t!e President t!ere is a need to expand t!e&andate o" t!e Co&&ission as de"ined in Section 1 !ereo" to include t!e investi%ation o" cases and instances o" %ra"t andcorruption durin% t!e prior ad&inistrations, suc! &andate &a( #e so extended accordin%l( #( 'a( o" a supple&ental ExecutiveOrder.

!e Court is not convinced. 6lt!ou%! Section 19 allo's t!e President t!e discretion to expand t!e scope o" investi%ations o" t!ePC so as to include t!e acts o" %ra"t and corruption co&&itted in ot!er past ad&inistrations, it does not %uarantee t!at t!e( 'ould#e covered in t!e "uture. Suc! expanded &andate o" t!e co&&ission 'ill still depend on t!e '!i& and caprice o" t!e President. I" !e

'ould decide not to include t!e&, t!e section 'ould t!en #e &eanin%less. !is 'ill onl( "orti"( t!e "ears o" t!e petitioners t!at t!eExecutive Order No. 1 'as /cra"ted to tailor-"it t!e prosecution o" o""icials and personalities o" t!e 6rro(o ad&inistration./1

!e Court tried to see$ %uidance "ro& t!e pronounce&ent in t!e case o" /irata v. andiganbayan,18 t!at t!e /PC00 C!arter3co&posed o" Executive Orders Nos. 1, ) and 1+4 does not violate t!e e<ual protection clause./ !e decision, !o'ever, 'as devoido" an( discussion on !o' suc! conclusor( state&ent 'as arrived at, t!e principal issue in said case #ein% onl( t!e su""icienc( o" acause o" action.

6 "inal 'ord

!e issue t!at see&s to ta$e center sta%e at present is - '!et!er or not t!e Supre&e Court, in t!e exercise o" its constitutionall(&andated po'er o" Judicial Revie' 'it! respect to recent initiatives o" t!e le%islature and t!e executive depart&ent, is exercisin%undue inter"erence. Is t!e :i%!est ri#unal, '!ic! is expected to #e t!e protector o" t!e Constitution, itsel" %uilt( o" violatin%"unda&ental tenets li$e t!e doctrine o" separation o" po'ers i&e and a%ain, t!is issue !as #een addressed #( t!e Court, #ut i tsee&s t!at t!e present political situation calls "or it to once a%ain explain t!e le%al #asis o" its action lest it continuall( #e accused o"

#ein% a !indrance to t!e nationBs t!rust to pro%ress.

!e P!ilippine Supre&e Court, accordin% to 6rticle 7III, Section 1 o" t!e 1@9 Constitution, is vested 'it! Judicial Po'er t!at/includes t!e dut( o" t!e courts o" =ustice to settle actual controversies involvin% ri%!ts '!ic! are le%all( de&anda#le anden"orcea#le, and to deter&ine '!et!er or not t!ere !as #een a %rave o" a#use o" discretion a&ountin% to lac$ or excess o"

=urisdiction on t!e part o" an( #ranc! or instru&entalit( o" t!e %overn&ent./

urt!er&ore, in Section +3)4 t!ereo", it is vested 'it! t!e po'er o" =udicial revie' '!ic! is t!e po'er to declare a treat(, internationalor executive a%ree&ent, la', presidential decree, procla&ation, order, instruction, ordinance, or re%ulation unconstitutional. !ispo'er also includes t!e dut( to rule on t!e constitutionalit( o" t!e application, or operation o" presidential decrees, procla&ations,orders, instructions, ordinances, and ot!er re%ulations. !ese provisions, !o'ever, !ave #een "ertile %rounds o" con"lict #et'een t!eSupre&e Court, on one !and, and t!e t'o co-e<ual #odies o" %overn&ent, on t!e ot!er. ;an( ti&es t!e Court !as #een accused o"assertin% superiorit( over t!e ot!er depart&ents.

o ans'er t!is accusation, t!e 'ords o" Justice Laurel 'ould #e a %ood source o" enli%!ten&ent, to 'it> /6nd '!en t!e =udiciar(

&ediates to allocate constitutional #oundaries, it does not assert an( superiorit( over t!e ot!er depart&entsA it does not in realit(nulli"( or invalidate an act o" t!e le%islature, #ut onl( asserts t!e sole&n and sacred o#li%ation assi%ned to it #( t!e Constitution todeter&ine con"lictin% clai&s o" aut!orit( under t!e Constitution and to esta#lis! "or t!e parties in an actual controvers( t!e ri%!ts'!ic! t!at instru&ent secures and %uarantees to t!e&./19

!us, t!e Court, in exercisin% its po'er o" =udicial revie', is not i&posin% its o'n 'ill upon a co-e<ual #od( #ut rat!er si&pl( &a$in%sure t!at an( act o" %overn&ent is done in consonance 'it! t!e aut!orities and ri%!ts allocated to it #( t!e Constitution. 6nd, i" a"tersaid revie', t!e Court "inds no constitutional violations o" an( sort, t!en, it !as no &ore aut!orit( o" proscri#in% t!e actions underrevie'. Ot!er'ise, t!e Court 'ill not #e deterred to pronounce said act as void and unconstitutional.

It cannot #e denied t!at &ost %overn&ent actions are inspired 'it! no#le intentions, all %eared to'ards t!e #etter&ent o" t!e nationand its people. 2ut t!en a%ain, it is i&portant to re&e&#er t!is et!ical principle> /!e end does not =usti"( t!e &eans./ No &atter!o' no#le and 'ort!( o" ad&iration t!e purpose o" an act, #ut i" t!e &eans to #e e&plo(ed in acco&plis!in% it is si&pl(irreconcila#le 'it! constitutional para&eters, t!en it cannot still #e allo'ed.1@ !e Court cannot =ust turn a #lind e(e and si&pl( let itpass. It 'ill continue to up!old t!e Constitution and its ens!rined principles.

/!e Constitution &ust ever re&ain supre&e. 6ll &ust #o' to t!e &andate o" t!is la'. Expedienc( &ust not #e allo'ed to sap itsstren%t! nor %reed "or po'er de#ase its rectitude./1

Lest it #e &isunderstood, t!is is not t!e deat! $nell "or a trut! co&&ission as no#l( envisioned #( t!e present ad&inistration.Per!aps a revision o" t!e executive issuance so as to include t!e earlier past ad&inistrations 'ould allo' it to pass t!e test o"reasona#leness and not #e an a""ront to t!e Constitution. O" all t!e #ranc!es o" t!e %overn&ent, it is t!e =udiciar( '!ic! is t!e &ostinterested in $no'in% t!e trut! and so it 'ill not allo' itsel" to #e a !indrance or o#stacle to its attain&ent. It &ust, !o'ever, #ee&p!asi5ed t!at t!e searc! "or t!e trut! &ust #e 'it!in constitutional #ounds "or /ours is still a %overn&ent o" la's and not o"&en./11














8/13/2019 G.R. No. 192935 December 7, 2010


/!R!$OR!, t!e petitions are 0R6NED. Executive Order No. 1 is !ere#( declared NCONSIION6L inso"ar as it isviolative o" t!e e<ual protection clause o" t!e Constitution.

6s also pra(ed "or, t!e respondents are !ere#( ordered to cease and desist "ro& carr(in% out t!e provisions o" Executive Order No.1.

SO ORDERED.

&OS! CATRAL #!NDOA 6ssociate Justice

E CONCR>

R!NATO C. CORONAC!ie" Justice

ANTONIO T. CARIO 6ssociate Justice

CONCITA CARIO #ORAL!S 6ssociate Justice

R!SBIT!RO &. (!LASCO, &R.

6ssociate Justice

ANTONIO !DUARDO B. NACURA

6ssociate Justice

T!R!SITA &. L!ONARDOHD! CASTRO 6ssociate Justice

ARTURO D. BRION 6ssociate Justice

DIOSDADO #. !RALTA 6ssociate Justice

LUCAS . B!RSA#IN 6ssociate Justice

#ARIANO C. D!L CASTILLO 6ssociate Justice

ROB!RTO A. ABAD 6ssociate Justice

#ARTIN S. (ILLARA#A, &R. 6ssociate Justice

&OS! ORTUGAL !R! 6ssociate Justice

#ARIA LOURD!S .A. S!R!NO 6ssociate Justice

C E R I I C 6 I O N

Pursuant to Section 1*, 6rticle 7III o" t!e Constitution, I certi"( t!at t!e conclusions in t!e a#ove Decision !ad #een reac!ed inconsultation #e"ore t!e case 'as assi%ned to t!e 'riter o" t!e opinion o" t!e Court.


$oooe

1 6n%ara v. !e Electoral Co&&ission, 8* P!il. 1*, 1@ 31*84.

) 2ernas, !e 1@9 Constitution o" t!e Repu#lic o" t!e P!ilippinesA 6 Co&&entar(, 18 ed., p. xxxiv, citin%0iller ,Lectures on t!e Constitution o" t!e nited States 8+ 31@*4A 1 Sc!'art5, !e Po'ers o" 0overn&ent 1 318*4.

* Cru5, P!ilippine Political la', )) ed. p. 1).

http://www.lawphil.net/judjuris/juri2010/dec2010/gr_192935_2010.html#rnt1









8/13/2019 G.R. No. 192935 December 7, 2010


+ Id.

Resolution dated 6u%ust )+, )1 consolidatin% 0.R. No. 1)* 'it! 0.R. No. 1**8, rollo, pp. @9-@@.

8 Section 1. !e le%islative po'er s!all #e vested in t!e Con%ress o" t!e P!ilippines '!ic! s!all consist o" a Senate and a:ouse o" Representatives, except to t!e extent reserved to t!e people #( t!e provision on initiative and re"erendu&.

9 2irao%o Petition, p. , rollo, p. 9.

@ Salvador Laurel v. :on. Desierto, 0.R. No. 1+*8@, 6pril 1), )), citin% .R. ;ec!e&, 6 reatise On !e La' o" Pu#licO""ices and O""icers.

International Center "or ransitional Justice, !ttp>FF'''.ict=.or%FenFt=F1*@.!t&l visited Nove&#er ), )1.

1ree&an, !e rut! Co&&ission and Procedural airness, )8 Ed., p. 1), citin% 1ayner, nspea*ableruths7 4acingthe Challenge of ruth Commissions.

11International Center "or ransitional Justice, supra note .

1) %rmando 3oronila, Philippine 3aily 6n8uirer, 6u%ust ), )1.

!ttp>FFne'sin"o.in<uirer.netFin<uirer!eadlinesFnationFvie'F)1@)-)@++++Frut!-#od(-told-a$e-noprisoners visited Nove&#er , )1.

1* La%&an Petition, pp. -), rollo, pp. @-8.

1+ Rollo, pp. 111-)18.

1 Ot!er'ise $no'n as t!e 6d&inistrative Code o" 1@9.

18 0rantin% Continuin% 6ut!orit( o !e President O" !e P!ilippines o Reor%ani5e !e National 0overn&ent.

19 Ot!er'ise $no'n as t!e 0eneral 6ppropriations 6ct o" )1.

1@ OS0 Consolidated Co&&ent, p. **, rollo, p. 1*, citin% y v. andiganbayan, 0.R. Nos. 18-9, ;arc! ), )1,*+ SCR6 81, 88-881.

1 Senate o" t!e P!ilippines v. Er&ita, 0.R. No. 18999, 6pril ), )8, +@@ SCR6 1, *A and 4rancisco v. 1ouse of'epresentatives, +8 P!il. @*, @+) 3)*4.

) OS0 ;e&orandu&, p. ), rollo, p. *+@.

)1 0.R. No. 11*1, 6u%ust 1, 1+, )* SCR6 8, ).

)) Supra note 1, citin% Pimentel -r., v. &+ecutive ecretary , 0.R. No. 1@@@, Jul( 8, ), +8) SCR6 8)*, 8*1-8*).

)* OS0 ;e&orandu&, p. *, rollo, p. *+.

)+ 0.R. No. 191*8, ;a( *, )8, +@ SCR6 18, )18-)1@.

) Social Justice Societ( 3SJS4 v. Dan%erous Dru%s 2oard and P!ilippine Dru% En"orce&ent 6%enc(, 0.R. No. 19@9,Nove&#er *, )@, 9 SCR6 +1, +)1A atad v. Secretar( o" t!e Depart&ent o" Ener%(, *+8 P!il *)1 3194A De 0uia v.CO;ELEC, 0.R. No. 1+91), ;a( 8, 1), )@ SCR6 +), +)).

)8 0.R. 1*))9, Jul( ), ), +8 SCR6 +9, 8).

)9 @+ P!il. *8@, *9* 31+4.













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8/13/2019 G.R. No. 192935 December 7, 2010


)@ /314 t!e c!aracter o" t!e "unds or ot!er assets involved in t!e caseA 3)4 t!e presence o" a clear case o" disre%ard o" aconstitutional or statutor( pro!i#ition #( t!e pu#lic respondent a%enc( or instru&entalit( o" t!e %overn&entA and, 3*4 t!elac$ o" an( ot!er part( 'it! a &ore direct and speci"ic interest in t!e <uestions #ein% raised./

) 0.R. No. 19+89, Jul( @, )1.

* Milos#a(an,Inc. v. 0uin%ona, Jr., 0.R. No. 11**9, ;a( , 1+, )*) SCR6 11, 1*.

*1 2irao%o ;e&orandu&, p. 9, rollo, p. 8.

*) Id. at 8, rollo, p. 8@.

** Id. at , rollo, p. 91.

*+ Id. at 1, rollo, p. 9).

* Id. at 1-11, rollo pp. 9)-9*.

*8 La%&an ;e&orandu&, 0.R. No 1**8, pp. 1-11, rollo, pp. )9-)91.

*9

OS0 ;e&orandu&, p. *), rollo, p. *1.

*@ Id. at **, rollo, p. *).

* OS0 Consolidated Co&&ent, p. )+, rollo, p. 1++.

+ OS0 ;e&orandu&, pp. *@-*, rollo, pp. *9-*@.

+1 Citin% Depart&ent o" :ealt! v. Ca&posano, 0.R. No. 198@+, 6pril )9, ), +9 SCR6 +*@, +.

+) Citin% Evan%elista v. Jarencio, No. L-)9)9+, Nove&#er )9, 19, 8@ SCR6 , 1+.

+* Citin% Rodri%ue5 v. Santos Dia5, No. L-1*, e#ruar( ), 18+, 1 SCR6 ++1, ++.

++ 0.R. No. 1888), 6pril ), )1.

+ Consolidated Co&&ent, p. +, rollo, p. 18.

+8 0.R. Nos. 1+)@1-@), Jul( 1, )1, *8 SCR6 91@, also cited in 2anda, supra.

+9 !e 7eterans ederation o" t!e P!ilippines v. Re(es, 0. R. No. 1)9, e#ruar( )@, )8, +@* SCR6 )8, 8+A DOCv. ;a#alot, +)@ P!il. 1+, 18+-18 3))4A ;ondano v. Silvosa, 9 P!il. 1+* 314.

+@ OS0 ;e&orandu&, p. 8, rollo, p. *9.

+ 0.R. No. 11)9+, Octo#er 18, 19, )@ SCR6 91*, 9*.

SN, Septe&#er )@, )1, pp. )-)9.

1 OS0 ;e&orandu&, p. *9, rollo, p.*8.

) 0.R. @@)11, Septe&#er 1, 1@, 199 SCR6 8@@.

* Id. at 81.

+ +8 P!il. @@8, @8-@9 3)4.























































8/13/2019 G.R. No. 192935 December 7, 2010


Consolidated Co&&ent, p. +@A rollo, p. 18@.

8 Section 19. !e President s!all !ave control o" all t!e executive depart&ents, #ureaus, and o""ices. :e s!all ensure t!att!e la's #e "ait!"ull( executed.

9 Ople v. orres, *+ P!il. +@, 89 31@4.

@ S&art Co&&unications, Inc. et al. v. National eleco&&unications Co&&ission, +8 P!il. 1+, 18 3)*4.

0.R. No. 88@1, Dece&#er ), 11, )+ SCR6 +@*.

8 Id. at +).

81 SN, Septe&#er )@, )1, pp. *-++ and OS0 ;e&orandu&, p. 89, rollo, p. **.

8) OS0 Consolidated Co&&ent, p. , rollo, p. 19.

8* Id. at 8, rollo, p. 198.

8+ Id.

8 0.R. No. 189911, Octo#er 1, )@, 8@ SCR6 *)9, **.

88 La%&an Petition, pp. +*, -), rollo, pp. 1, -8.

89 La%&an ;e&orandu&, 0.R. 1**8, pp. )@-), rollo, pp. *+9-*+@.

8@ La%&an Petition, p. *1, rollo, p. *.

8 Id. at )@-), rollo, pp. *8-*9.

9 Id. at ), rollo, p. *9.

91

OS0 ;e&orandu&, p. @@; rollo, p. +9.

9) OS0 Consolidated Co&&ent. p. 8@, rollo, p. 1@@.

9* OS0 ;e&orandu&, pp. -*, rollo, pp. +-+1).

9+ he Philippine -udges %ssociation v. 1on. Pardo, 0.R. No. 1*91, Nove&#er 11, 1*, ))9 SCR6 9*, 911.

9 Id. at 91), citin% Ic!on% v. :ernande5, 11 P!il. 11 3194A Sison, Jr. v. 6nc!eta, No. L-+*1, Jul( ), 1@+, 1*SCR6 8+A 6ssociation o" S&all Lando'ners in t!e P!ilippines v. Secretar( o" 6%rarian Re"or&, 0.R. No. 9@+), Jul( 1+,1@, 19 SCR6 *+*, *9.

98 #uino v. en*ows*i, + *d 1 3)d. Cir. 14 cited in 6&. Jur, )d, 7ol. 18 3#4, p. *).

99 &dward /alves, 6nc. v. Wa*e Country , *+* N.C. +)8 cited in 6&. Jur. )d, 7ol. 18 3#4, p. **.

9@ (ehr v. 'obertson, +8* S )+@, 1* cited in 6&. Jur. )d, 7ol. 18 3#4, p. **.

9 See Columbus )d. of &d. v. Penic*, ++* S ++ cited 6&. Jur. )d, 7ol. 18 3#4, pp. *18-*19.

@ See (ombard v. tate of (a., *9* S )89 cited in 6&. Jur. )d, 7ol. 18 3#4, p. *18.

@1 2eltran v. Secretar( o" :ealt!, 1) P!il 8, @* 3)4.























































8/13/2019 G.R. No. 192935 December 7, 2010


@) Cru5, Constitutional La', )* ed., p. 1)@.

@* 0c&rlain v. aylor , )9 Ind. )+ cited in 6&. Jur. )d, 7ol. 18 3#4, p. *89.

@+ Cru5, Constitutional La', )* ed., pp. 1*-1*8.

@ No. L-))+8, SCR6 +, 99-9@ 3Septe&#er 1), 19+4.

@8 )asa v. 4ederacion !brera de la 6ndustria aba8uera y !tros rabajadores de 4ilipinas 4!6%4$, No. L-)911*,Nove&#er 1, 19+, 81 SCR6 *, 11-111A %nuncension v. 9ational (abor nion, No. L-)89, Nove&#er ), 199, @SCR6 *, *9)-*9*A /illegas v. 1iu Chiong sai Pao 1o, No. L-)8+8, Nove&#er 1, 19@, @8 SCR6 )9, )9A 3umlaov. Comelec , No. L-))+, Januar( )), 1@, SCR6 *), ++ACeni:a v. Comelec , No. L-)*+, Januar( )@, 1@, SCR6 98*, 99)-99*A 1imagan v. People, 0.R. No. 11*@11, Octo#er 9, 1+, )*9 SCR6 *@A he Conference of0aritime 0anning %gencies, 6nc. v. P!&%, 0.R. No. 11+91+, 6pril )1, 1, )+* SCR6 888, 899A -00 Promotion and0anagement, 6nc. v. Court of %ppeals, 0.R. No. 1), 6u%ust , 18, )8 SCR6 *1, **1**)A and iu v. Court of

%ppeals, 0.R. No. 1)9+1, Januar( ), 1, *1 SCR6 )9@, )@@-)@. ee also 6chong v. 1ernande:, No. L-9, 11P!il. 11 3194A /era v. Cuevas, Nos. L-**8*-+, ;a( *1, 19, SCR6 *9, *@@A and olentino v. ecretary of4inance, 0.R. Nos. 11+, 11), 11+*, 11++, 119+, 119@1, 11@), 11@9*, and 11*1, 6u%ust ), 1+,)* SCR6 8*, 8@+.

@9 9t! !ereas clause, Executive Order No. 1.

@@ Cru5, Constitutional La', )* ed., p. 1)@.

@ OS0, ;e&orandu&, p. @, rollo, p. +@.

8t! !ereas clause, Executive Order No. 1

1 Lee, :and#oo$ o" Le%al ;axi&s, )) Ed., p.

) 11@ S *9, !ttp>FFcasela'.lp."indla'.co&FscriptsF%etcase.plcourtTusUvolT11@UinvolT* accessed on Dece&#er +,)1.

* ;acalintal v. CO;ELEC, 0.R. No. 191*, Jul( 1, )*, + SCR6 81+, pp. 8*1-8*)A 0anila Prince 1otel vs. #6,** P!il. @), 11 3194.

+ Id. at 8*).

98 . Supp. *@@, N.. D. Ind., 11, Jan *, 11, Cri& No. :CR -+)Aalso!ttp>FFin."indacase.co&Fresearc!F'"r&Doc7ie'er.aspxFx<F"ac.111*V).NIN.!t&F<x accessed Dece&#er, )1

8 0c&rlain v. aylor , )9 Ind. )+ cited in 6&. Jur. )d, 7ol. 18 3#4, p. *89.

9 0artin v. ollefson, )+ as!. )d )11 cited in 6&. Jur. )d, 7ol. 18 3#4, pp. *89-*8@ .

@ 9i+on v. %dministrator of #eneral ervices, +** S +) cited in 6&. Jur. )d, 7ol. 18 3#4, p. *91.

1unter v. 4lowers, +* So )d +* cited in 6&. Jur. )d, 7ol. 18 3#4, p. *9.

1 Clements v. 4ashing , +9 S 9.

11 See 6&. Jur. )d, 7ol. 18 3#4, pp. *9-*91, as "ootnote 36 state le%islature &a(, consistentl( 'it! t!e E<ual ProtectionClause, address a pro#le& one step at a ti&e, or even select one p!ase o" one "ield and appl( a re&ed( t!ere, ne%lectin%t!e ot!ers. KJe""eson v. :ac$ne(, +8 S *G.

1) 0c3onald v. )oard of &lection Com2rs of Chicago, *+ S @) cited in 6& Jur )d, ootnote No. .

1* 'ic*etts v. City of 1ardford , 9+ . *d 1*9 cited in 6&. Jur. )d, 7ol. 18 3#4, p. **.












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8/13/2019 G.R. No. 192935 December 7, 2010


1+ OS0 Consolidated Co&&ent, p. 88, rollo, p.1@8.

1 La%&an ;e&orandu&, p. *A rollo, p. 11@.

18 0.R. No. @8)8, Octo#er 1, 11A )) SCR6 8@.

19 %ngara v. &lectoral Commission, 8* P!il. 1*, 1@ 31*84.

1@ Cru5, P!ilippine Political La', )) ed., pp. 1)-1*.

1 Id.

11 Repu#lic v. Sout!side :o&eo'ners 6ssociation, 0.R. No. 181, Septe&#er )), )8.

The Lawphil Project - Arellano Law Foundation

S!ARAT! OINION

CORONA, C.J.:

O" rut! and rut! Co&&issions

!e "unda&ental #ase upon '!ic! a trut! co&&ission is created is t!e ri%!t to t!e trut!.1 !ile t!e ri%!t to t!e trut! is (et to #eesta#lis!ed as a ri%!t under custo&ar( la') or as a %eneral principle o" international la',* it !as nevert!eless e&er%ed as a /le%alconcept at t!e national, re%ional and international levels, and relates to t!e o#li%ation o" t!e state to provide in"or&ation to victi&s orto t!eir "a&ilies or even societ( as a '!ole a#out t!e circu&stances surroundin% serious violations o" !u&an ri%!ts./+

6 trut! co&&ission !as #een %enerall( de"ined as a /#od( set up to investi%ate a past !istor( o" violations o" !u&an ri%!ts in aparticular countr( ...,/8 and includes "our ele&ents>

... irst, a trut! co&&ission "ocuses on t!e past. Second, a trut! co&&ission is not "ocused on a speci"ic event, #ut atte&pts to paintt!e overall picture o" certain !u&an ri%!ts a#uses, or violations o" international !u&anitarian la', over a period o" ti&e. !ird, a trut!co&&ission usuall( exists te&poraril( and "or a pre-de"ined period o" ti&e, ceasin% to exist 'it! t!e su#&ission o" a report o" its"indin%s. inall(, a trut! co&&ission is al'a(s vested 'it! so&e sort o" aut!orit(, #( 'a( o" its sponsor, t!at allo's it %reater accessto in"or&ation, %reater securit( or protection to di% into sensitive issues, and a %reater i&pact 'it! its report.9

6s reported #( 6&nest( International,@ t!ere are at least ** trut! co&&issions esta#lis!ed in )@ countries "ro& 19+ to )9 andt!is includes t!e P!ilippines, '!ic! created t!e Presidential Co&&ittee on :u&an Ri%!ts 3PC:R4 in 1@8 under t!e post-;arcosad&inistration o" Pres. Cora5on C. 6<uino.

!e P!ilippine Experience

Nota#l(, Pres. Cora5on C. 6<uino created not one #ut t'o trut! co&&issions. 6side "ro& t!e PC:R, '!ic! 'as created to address!u&an ri%!ts violations, t!e Presidential Co&&ission on 0ood 0overn&ent or PC00 'as also esta#lis!ed. !e PC00 'as tas$ed'it! assistin% t!e President in t!e /recover( o" all in-%otten 'ealt! accu&ulated #( "or&er President erdinand E. ;arcos, !isi&&ediate "a&il(, relatives, su#ordinates and close associates, '!et!er located in t!e P!ilippines or a#road, includin% t!e ta$eoveror se<uestration o" all #usiness enterprises and entities o'ned or controlled #( t!e&, durin% !is ad&inistration, directl( or t!rou%!no&inees, #( ta$in% undue advanta%e o" t!eir pu#lic o""ice andFor usin% t!eir po'ers, aut!orit(, in"luence, connections orrelations!ip,/ a&on% ot!ers.1 nli$e t!e present e&#attled and controversial rut! Co&&ission, !o'ever, t!e PC00 'as created#( Pres. Cora5on C. 6<uino pursuant to !er le%islative po'ers under Executive Order No. 1,11'!ic! in turn, 'as sanctioned #(Procla&ation No. *.1)

6nd unli$e t!e PC00, t!e present rut! Co&&ission su""ers "ro& #ot! le%al and constitutional in"ir&ities and &ust #e struc$ do'nas unconstitutional.

o4er To Cre+e bc OceJ I=ere; Le6+e















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8/13/2019 G.R. No. 192935 December 7, 2010


!e separation o" po'ers is a "unda&ental principle in our s(ste& o" %overn&ent.1* !is principle is one o" t!e cornerstones o" ourconstitutional de&ocrac( and it cannot #e eroded 'it!out endan%erin% our %overn&ent.1+!e 1@9 Constitution divides%overn&ental po'er into t!ree co-e<ual #ranc!es> t!e executive, t!e le%islative and t!e =udicial. It delineates t!e po'ers o" t!e t!ree#ranc!es> t!e le%islature is %enerall( li&ited to t!e enact&ent o" la's, t!e executive depart&ent to t!e en"orce&ent o" la's and t!e

=udiciar( to t!eir interpretation and application to cases and controversies.1 Eac! #ranc! is independent and supre&e 'it!in its o'nsp!ere and t!e encroac!&ent #( one #ranc! on anot!er is to #e avoided at all costs.

!e po'er under scrutin( in t!is case is t!e creation o" a pu#lic o""ice. It is settled t!at, except "or t!e o""ices created #( t!e

Constitution, t!e creation o" a pu#lic o""ice is pri&aril( a le%islative "unction. !e le%islature decides '!at o""ices are suita#le,necessar( or convenient "or t!e ad&inistration o" %overn&ent.18

!e <uestion is '!et!er Con%ress, #( la', !as dele%ated to t!e C!ie" Executive t!is po'er to create a pu#lic o""ice.

In creatin% t!e rut! Co&&ission, Executive Order No. 1 3E.O. No. 14 points to Section *1, C!apter 1, 2oo$ III o" E.O. No. )) ort!e 6d&inistrative Code o" 1@9 as its le%al #asis>

Section *1. Continuin% 6ut!orit( o" t!e President to Reor%ani5e !is O""ice. W !e President, su#=ect to t!e polic( in t!e ExecutiveO""ice and in order to ac!ieve si&plicit(, econo&( and e""icienc(, s!all !ave continuin% aut!orit( to reor%ani5e t!e ad&inistrativestructure o" t!e O""ice o" t!e President. or t!is purpose, !e &a( ta$e an( o" t!e "ollo'in% actions>

314 Restructure t!e internal or%ani5ation o" t!e O""ice o" t!e President Proper, includin% t!e i&&ediate O""ices, t!ePresidential Special 6ssistantsF6dvisers S(ste& and t!e Co&&on Sta"" Support S(ste&, #( a#olis!in%, consolidatin%, or

&er%in% units t!ereo" or trans"errin% "unctions "ro& one unit to anot!erA

3)4 rans"er an( "unction under t!e O""ice o" t!e President to an( ot!er Depart&ent or 6%enc( as 'ell as trans"er"unctions to t!e O""ice o" t!e President "ro& ot!er Depart&ents and 6%enciesA and

3*4 rans"er an( a%enc( under t!e O""ice o" t!e President to an( ot!er depart&ent or a%enc( as 'ell as trans"er a%enciesto t!e O""ice o" t!e President "ro& ot!er depart&ents or a%encies. 3E&p!asis supplied4

!is provision pertains to t!e PresidentBs continuin% dele%ated po'er to reor%ani5e t!e O""ice o" t!e President. !e 'ell-settledprinciple is t!at t!e President !as t!e po'er to reor%ani5e t!e o""ices and a%encies in t!e executive depart&ent in line 'it! !isconstitutionall( %ranted po'er o" control over executive o""ices and #( virtue o" !is dele%ated le%islative po'er to reor%ani5e t!e&under existin% statutes.19 Needless to state, suc! po'er &ust al'a(s #e in accordance 'it! t!e Constitution, relevant la's andprevailin% =urisprudence.1@

In creatin% t!e rut! Co&&ission, did t!e President &erel( exercise !is continuin% aut!orit( to reor%ani5e t!e executive

depart&ent No.

Considerin% t!at t!e President 'as exercisin% a dele%ated po'er, !is actions s!ould !ave con"or&ed to t!e standards set #( t!ela', t!at is, t!at t!e reor%ani5ation #e in t!e interest o" /si&plicit(, econo&( and e""icienc(./ ere suc! o#=ectives &et !e( 'erenot. !e rut! Co&&ission clearl( duplicates and supplants t!e "unctions and po'ers o" t!e O""ice o" t!e O&#uds&an andFor t!eDepart&ent o" Justice, as 'ill #e discussed in detail later. :o' can t!e creation o" a ne' co&&ission 'it! t!e sa&e duplicative"unctions as t!ose o" alread( existin% o""ices result in econo&( or a &ore e""icient #ureaucrac(1 Suc! a creation #eco&es even&ore <uestiona#le considerin% t!at t!e 1@9 Constitution itsel" &andates t!e O&#uds&an to investi%ate %ra"t and corruptioncases.)

T=e Tr= Commo =e L6= o T=e !+ roeco C+e

E<ual protection is a "unda&ental ri%!t %uaranteed #( t!e Constitution. Section 1, 6rticle III o" t!e 1@9 Constitution reads>

... nor s!all an( person #e denied t!e e<ual protection o" t!e la's.

It is a ri%!t a""orded ever( &an. !e ri%!t to e<ual protection does not re<uire a universal application o" t!e la's to all persons ort!in%s 'it!out distinction.)1 It re<uires si&pl( t!at all persons or t!in%s si&ilarl( situated s!ould #e treated ali$e, #ot! as to ri%!tscon"erred and responsi#ilities i&posed.))

In certain cases, !o'ever, as '!en t!in%s or persons are di""erent in "act or circu&stance, t!e( &a( #e treated in la' di""erentl(.)* In7ictoriano vs. Eli5alde Rope or$ers nion,)+ t!e Court declared>































8/13/2019 G.R. No. 192935 December 7, 2010


6 la' is not invalid #ecause o" si&ple ine<ualit(. !e ver( idea o" classi"ication is t!at o" ine<ualit(, so t!at it %oes 'it!out sa(in%t!at t!e &ere "act o" ine<ualit( in no &anner deter&ines t!e &atter o" constitutionalit(. 6ll t!at is re<uired o" a valid classi"ication ist!at it #e reasona#le, '!ic! &eans t!at t!e classi"ication s!ould #e #ased on su#stantial distinctions '!ic! &a$e "or realdi""erences, t!at it &ust #e %er&ane to t!e purpose o" t!e la'A t!at it &ust not #e li&ited to existin% conditions onl(A and t!at it &ustappl( e<uall( to eac! &e&#er o" t!e class. !is Court !as !eld t!at t!e standard is satis"ied i" t!e classi"ication or distinction is#ased on a reasona#le "oundation or rational #asis and is not palpa#l( ar#itrar(.

!us, "or a classi"ication to #e valid it &ust pass t!e test o" reasona#leness,) '!ic! re<uires t!at>

314 it #e #ased on su#stantial distinctionsA

3)4 it &ust #e %er&ane to t!e purpose o" t!e la'A

3*4 it &ust not #e li&ited to present conditionsA and

3+4 it &ust appl( e<uall( to all &e&#ers o" t!e sa&e class.

6ll "our re<uisites &ust #e co&plied 'it! "or t!e classi"ication to #e valid and constitutional.

!e constitutionalit( o" E. O. No. 1 is #ein% attac$ed on t!e %round t!at it violates t!e e<ual protection clause.

Petitioners ar%ue t!at E.O. No. 1 violates t!e e<ual protection clause as it deli#eratel( vests t!e rut! Co&&ission 'it! =urisdictionand aut!orit( to solel( tar%et o""icials and e&plo(ees o" t!e 6rro(o 6d&inistration.)8 ;oreover, t!e( clai& t!at t!ere is no su#stantialdistinction o" %ra"t reportedl( co&&itted under t!e 6rro(o ad&inistration and %ra"t co&&itted under previous ad&inistrations to'arrant t!e creation o" a rut! Co&&ission '!ic! 'ill investi%ate "or prosecution o""icials and e&plo(ees o" t!e pastad&inistration.)9

Respondents, on t!e ot!er !and, ar%ue t!at t!e creation o" t!e rut! Co&&ission does not violate t!e e<ual protection clause. 6ccordin% to t!e&, '!ile E.O. No. 1 na&es t!e previous ad&inistration as t!e initial su#=ect o" t!e investi%ation, it does not con"ineitsel" to cases o" %ra"t and corruption co&&itted solel( durin% t!e past ad&inistration. Section 19 o" E.O. No. 1 clearl( spea$s o" t!ePresidentBs po'er to expand its covera%e to previous ad&inistrations. ;oreover, respondents ar%ue t!at t!e se%re%ation o" t!etransactions o" pu#lic o""icers durin% t!e previous ad&inistration as possi#le su#=ects o" investi%ation is a valid classi"ication #asedon su#stantial distinctions and is %er&ane to t!e evils '!ic! t!e executive order see$s to correct.)@

On its "ace, E.O. No. 1 clearl( sin%les out t!e previous ad&inistration as t!e rut! Co&&issionBs sole su#=ect o" investi%ation.

Section 1. Creation o" a Co&&ission !ere is !ere#( created t!e P:ILIPPINE R: CO;;ISSION, !ereina"ter re"erred to ast!e /CO;;ISSION/, '!ic! s!all pri&aril( see$ and "ind t!e trut! on, and to'ard t!is end, investi%ate reports o" %ra"t and corruptiono" suc! scale and &a%nitude t!at s!oc$ and o""end t!e &oral and et!ical sensi#ilities o" t!e people co&&itted #( pu#lic o""icers ande&plo(ees, t!eir co-principals, acco&plices and accessories "ro& t!e private sector, i" an( durin% t!e previous ad&inistrationA andt!erea"ter reco&&end t!e appropriate action to #e ta$en to ensure t!at t!e "ull &easure o" =ustice s!all #e served 'it!out "ear or"avor.

Section ). Po'ers and unctions. !e Co&&ission, '!ic! s!all !ave t!e po'ers o" an investi%ative #od( under Section *9,C!apter , 2oo$ I o" t!e 6d&inistrative Code o" 1@9, is pri&aril( tas$ed to conduct a t!orou%! "act-"indin% investi%ation o" reportedcases o" %ra"t and corruption re"erred to in Section 1, involvin% t!ird level pu#lic o""icers and !i%!er, t!eir co-principals, acco&plicesand accessories "ro& t!e private sector, i" an( durin% t!e previous ad&inistration and t!erea"ter su#&it its "indin%s andreco&&endations to t!e President, Con%ress and t!e O&#uds&an. x x x/ 3E&p!asis supplied4

Not'it!standin% Section 19, '!ic! provides>

I" and '!en in t!e =ud%&ent o" t!e President t!ere is a need to expand t!e &andate o" t!e Co&&ission as de"ined in Section 1!ereo" to include t!e investi%ation o" cases and instances o" %ra"t and corruption durin% t!e prior ad&inistration, suc! &andate &a(#e so extended accordin%l( #( 'a( o" supple&ental Executive Order./ 3E&p!asis supplied4,

suc! expanded &andate o" t!e rut! Co&&ission 'ill still depend on t!e '!i& and caprice o" t!e President. I" t!e Presidentdecides not to expand t!e covera%e o" t!e investi%ation, t!en t!e rut! Co&&issionBs sole directive is t!e investi%ation o" o""icialsand e&plo(ees o" t!e 6rro(o ad&inistration.

0iven t!e indu#ita#l( clear &andate o" E.O. No. 1, does t!e identi"ication o" t!e 6rro(o ad&inistration as t!e su#=ect o" t!e rut!Co&&issionBs investi%ation pass t!e =urisprudential test o" reasona#leness Stated di""erentl(, does t!e &andate o" E.O. No. 1violate t!e e<ual protection clause o" t!e Constitution es.










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I rule in "avor o" petitioners.

314 No Su#stantial Distinction

!ere is no su#stantial distinction #et'een t!e corruption '!ic! occurred durin% t!e past ad&inistration and t!e corruption o" t!ead&inistrations prior to it. 6lle%ations o" %ra"t and corruption in t!e %overn&ent are un"ortunatel( prevalent re%ardless o" '!o t!ePresident !appens to #e. RespondentsB clai& o" 'idespread s(ste&ic corruption is not uni<ue onl( to t!e past ad&inistration.

3)4 Not 0er&ane to t!e Purpose o" t!e La'

!e purpose o" E.O. No. 1 3to put an end to corruption in t!e %overn&ent4 is stated clearl( in t!e prea&#le o" t!e a"oresaid order>

:ERE6S, t!e PresidentBs #attle-cr( durin% !is ca&pai%n "or t!e Presidenc( in t!e last elections /$un% 'alan% corrupt, 'alan%&a!irap/ expresses a sole&n pled%e t!at i" elected, !e 'ould end corruption and t!e evil it #reedsA xxx

In t!e li%!t o" t!e un&ista$a#le purpose o" E.O. No. 1, t!e classi"ication o" t!e past re%i&e as separate "ro& t!e past ad&inistrationsis not %er&ane to t!e purpose o" t!e la'. Corruption did not occur onl( in t!e past ad&inistration. o sta&p out corruption, 'e &ust%o #e(ond t!e "aXade o" eac! ad&inistration and investi%ate all pu#lic o""icials and e&plo(ees alle%ed to !ave co&&itted %ra"t inan( previous ad&inistration.

3*4 E.O. No. 1 does Not 6ppl( to uture Conditions

6s correctl( pointed out #( petitioners, t!e classi"ication does not even re"er to present conditions, &uc! &ore to "uture conditionsvis-avis t!e co&&ission o" %ra"t and corruption. It is li&ited to a particular past ad&inistration and not to all past ad&inistrations.)

e %o #ac$ to t!e text o" t!e executive order in <uestion.

x x x

!ereas, t!ere is a need "or a separate #od( dedicated solel( to investi%atin% and "indin% out t!e trut! concernin% t!e reportedcases i" %ra"t and corruption durin% t!e previous ad&inistration, and '!ic! 'ill reco&&end t!e prosecution o" t!e o""enders andsecure =ustice "or allA

x x x

Section 1. Creatin% o" a Co&&ission. !ere is !ere#( created t!e P:ILIPPINE R: CO;;ISSION, !ereina"ter re"erred to ast!e /CO;;ISSION/, '!ic! s!all pri&aril( see$ and "ind t!e trut! on, and to'ard t!is end investi%ate reports o" %ra"t and corruption,x x x i" an(, durin% t!e previous ad&inistrationA xxx

Section ). Po'er and unctions. Po'ers and unctions. !e Co&&ission, '!ic! s!all !ave all t!e po'ers o" an investi%ative#od( under Section *9, C!apter , 2oo$ I o" t!e 6d&inistrative Code o" 1@9, is pri&aril( tas$ed to conduct a t!orou%! "act-"indin%investi%ation o" reported cases o" %ra"t and corruption x x x, i" an(, durin% t!e previous ad&inistration and t!erea"ter su#&it its"indin%s and reco&&endations to t!e President, Con%ress and t!e O&#uds&an. x x x

!e a#ove-<uoted provisions s!o' t!at t!e sole su#=ect o" t!e investi%ation 'ill #e pu#lic o""icers and e&plo(ees o" t!e previousad&inistration onl(, t!at is, until suc! ti&e i" and '!en t!e President decides to expand t!e rut! Co&&issionBs &andate to includeot!er ad&inistrations 3i" !e does so at all4.

3+4 E.O. No. 1 Does Not 6ppl( to t!e Sa&e Class

Lastl(, E.O. No. 1 does not appl( to all o" t!ose #elon%in% to t!e sa&e class "or it onl( applies to t!e pu#lic o""icers and e&plo(eeso" t!e past ad&inistration. It excludes "ro& its purvie' t!e %ra"t and t!e %ra"ters o" ad&inistrations prior to t!e last one. 0ra"t is notexclusive to t!e previous presidenc( alone, !ence t!ere is no =usti"ication to li&it t!e scope o" t!e &andate onl( to t!e previousad&inistration.

act-indin% or Investi%ation

!e nature o" t!e po'ers and "unctions allocated #( t!e President to t!e rut! Co&&ission #( virtue o" E.O. No. 1 isinvesti%ator(,* 'it! t!e purposes o" deter&inin% pro#a#le cause o" t!e co&&ission o" /%ra"t and corruption under pertinentapplica#le la's/ and re"errin% suc! "indin% and evidence to t!e proper aut!orities "or prosecution.*1










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!e respondents pass o"" t!ese po'ers and "unctions as &erel( "act-"indin%, s!ort o" investi%ator(. I do not t!in$ so. Su%ar-coatin%t!e description o" t!e rut! Co&&issionBs processes and "unctions so as to &a$e it /sound !ar&less/ "alls s!ort o" constitutionalre<uire&ents. It !as in its !ands t!e vast arsenal o" t!e %overn&ent to inti&idate, !arass and !u&iliate its perceived politicalene&ies outside t!e la'"ul prosecutorial avenues provided #( la' in t!e O&#uds&an or t!e Depart&ent o" Justice.

!e scope o" t!e investi%ator( po'ers and "unctions assi%ned #( t!e President to t!e rut! Co&&ission enco&passes all /pu#lico""icers and e&plo(ees, t!eir co-principals, acco&plices and accessories "ro& t!e private sector, i" an(, durin% t!e previousad&inistration./*)

!ere is no dou#t in &( &ind t!at '!at t!e President %ranted t!e rut! Co&&ission is t!e +=or; to conduct preli&inar(investi%ation o" co&plaints o" %ra"t and corruption a%ainst !is i&&ediate predecessor and !er associates.

!e respondents see not!in% 'ron% 'it! t!at. !e( #elieve t!at, pursuant to !is po'er o" control and %eneral supervision under 6rticle 7II o" t!e Constitution,** t!e President can create an ad-!oc co&&ittee li$e t!e rut! Co&&ission to investi%ate %ra"t andcorruption cases. 6nd t!e President can endo' it 'it! aut!orit( parallel to t!at o" t!e O&#uds&an to conduct preli&inar(investi%ations. Citin% !mbudsman v. #alicia*+ t!e po'er o" t!e O&#uds&an to conduct preli&inar( investi%ations is not exclusive#ut s!ared 'it! ot!er si&ilarl( aut!ori5ed %overn&ent a%encies.

I ta$e a di""erent vie'. !e operative 'ord is /aut!ori5ed/.

Indeed, t!e po'er o" control and supervision o" t!e President includes t!e po'er to discipline '!ic! in turn i&plies t!e po'er toinvesti%ate.* No Con%ress or Court can dero%ate "ro& t!at po'er *8 #ut t!e Constitution itsel" &a( set certain li&its.*9 6nd t!e

Constitution !as in "act carved out t!e preli&inar( investi%ator( aspect o" t!e control po'er and allocated t!e sa&e to t!e "ollo'in%>

3a4 to Con%ress over presidential appointees '!o are i&peac!a#le o""icers 36rticle ?I, Sections ) and *4A

3#4 to t!e Supre&e Court over &e&#ers o" t!e courts and t!e personnel t!ereo" 36rticle 7III, Section 84A and

3c4 to t!e O&#uds&an over an( ot!er pu#lic o""icial, e&plo(ee, o""ice or a%enc( 36rticle ?I, Section 1* 3144.

:o'ever, even as t!e Constitution !as %ranted to t!e O&#uds&an t!e po'er to investi%ate ot!er pu#lic o""icials and e&plo(ees,suc! po'er is not a#solute and exclusive. Con%ress !as t!e po'er to "urt!er de"ine t!e po'ers o" t!e O&#uds&an and, i&pliedl(,to aut!ori5e ot!er o""ices to conduct suc! investi%ation over t!eir respective o""icials and personnel.*@

T=e Coo =+ ee- Co6re +oe =e :o4er o 6r+ o +; oce cocrre Er-co 4= =eOmb-m+ o co-c :rem+r; e6+o o c+e o 6r+ +- corr:o.

In a &(riad o" cases, t!is Court !as reco%ni5ed t!e concurrent =urisdiction o" ot!er #odies vis-Y-vis t!e O&#uds&an to conductpreli&inar( investi%ation o" co&plaints o" %ra"t and corruption as +=ore- b; +4, &eanin%, "or an( ot!er person or a%enc( to #ea#le to conduct suc! investi%ations, t!ere &ust #e a la' aut!ori5in% !i& or it to do so.

In !mbudsman v. #alicia 3cited in t!e ponencia4 as 'ell as !mbudsman v. &standarte,* t!e Court reco%ni5ed t!e concurrent =urisdiction o" t!e Division Sc!ool Superintendent vis-Y-vis t!e O&#uds&an to conduct preli&inar( investi%ation o" co&plaints o"%ra"t and corruption co&&itted #( pu#lic sc!ool teac!ers. Suc! concurrent =urisdiction o" t!e Division Sc!ool Superintendent 'as%ranted #( la', speci"icall( R6 +89 or t!e 0agna Carta "or Pu#lic Sc!ool eac!ers.+

Li$e'ise, in !mbudsman v. 0edrano+1 t!e Court !eld t!at #( virtue o" R6 +89 t!e Depart&ent o" Education Investi%atin%Co&&ittee !as concurrent =urisdiction 'it! t!e O&#uds&an to conduct a preli&inar( investi%ation o" co&plaints a%ainst pu#licsc!ool teac!ers.

Even t!e San%%unian% Panlun%sod !as concurrent =urisdiction 'it! t!e O&#uds&an to loo$ into co&plaints a%ainst t!e punon%

#aran%a(.+) Suc! concurrent aut!orit( is "ound in R6 918 or t!e Local 0overn&ent Code.

!e Depart&ent o" Justice is anot!er a%enc( 'it! =urisdiction concurrent 'it! t!e O&#uds&an to conduct preli&inar( investi%ationo" pu#lic o""icials and e&plo(ees.+* Its concurrent =urisdiction is #ased on t!e 1@9 6d&inistrative Code.

Certainl(, t!ere is a la', t!e 6d&inistrative Code, '!ic! aut!ori5ed t!e O""ice o" t!e President to exercise =urisdiction concurrent'it! t!e O&#uds&an to conduct preli&inar( investi%ation o" %ra"t and corruption cases. :o'ever, t!e scope and "ocus o" itspreli&inar( investi%ation are restricted. nder t!e principle t!at t!e po'er to appoint includes t!e po'er to re&ove, eac! President!as !ad !is or !er o'n version o" a presidential co&&ittee to investi%ate %ra"t and corruption, t!e last #ein% President 0loria;acapa%al 6rro(oBs Presidential 6nti-0ra"t Co&&ission 3P60C4 under E.O. No. )8@. !e P60C exercised concurrent aut!orit( 'it!t!e O&#uds&an to investi%ate co&plaints o" %ra"t and corruption a%ainst presidential appointees '!o are not i&peac!a#le o""icers







































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and non-presidential appointees in conspirac( 'it! t!e latter. It is in t!is li%!t t!at 3!1 v. Camposano, et al .++ as cited int!e ponencia s!ould #e understood. 6t t!at ti&e, t!e PC60C 3no' de"unct4 !ad no investi%ator( po'er over non-presidentialappointeesA !ence t!e President created an ad-!oc co&&ittee to investi%ate #ot! t!e principal respondent '!o 'as a presidentialappointee and !er co-conspirators '!o 'ere non-presidential appointees. !e P60C 3no' also de"unct4, !o'ever, 'as aut!ori5edto investi%ate #ot! presidential appointees and non-presidential appointees '!o 'ere in conspirac( 'it! eac! ot!er.

:o'ever, alt!ou%! pursuant to !is po'er o" control t!e President &a( supplant and directl( exercise t!e investi%ator( "unctions o"depart&ents and a%encies 'it!in t!e executive depart&ent,+ !is po'er o" control under t!e Constitution and t!e 6d&inistrative

Code is con"ined onl( to t!e executive depart&ent.+8 it!out an( la' aut!ori5in% !i&, t!e President cannot le%all( create aco&&ittee to extend !is investi%ator( reac! across t!e #oundaries o" t!e executive depart&ent to /pu#lic o""icers and e&plo(ees,t!eir co-principals, acco&plices and accessories "ro& t!e private sector, i" an(, durin% t!e previous ad&inistration/ 'it!out settin%apart t!ose '!o are still in t!e executive depart&ent "ro& t!ose '!o are not. Onl( t!e O&#uds&an !as t!e investi%ator( =urisdictionover t!e& under 6rticle ?I, Section 1*. !ere is no la' %rantin% to t!e President t!e aut!orit( to create a co&&ittee 'it! concurrentinvesti%ator( =urisdiction o" t!is nature.

!e President acted in violation o" t!e Constitution and 'it!out aut!orit( o" la' '!en !e created a rut! Co&&ission under E.O.No. 1 to exercise concurrent =urisdiction 'it! t!e O&#uds&an to conduct t!e preli&inar( investi%ation o" co&plaints o" %ra"t andcorruption a%ainst pu#lic o""icers and e&plo(ees, t!eir co-principals, acco&plices and accessories "ro& t!e private sector, i" an(,durin% t!e previous ad&inistration.

Ie6+o or *+HA-E-c+o

Respondents ar%ue t!at t!e rut! Co&&ission is &erel( an investi%ative and "act-"indin% #od( tas$ed to %at!er "acts, dra'

conclusions t!ere"ro& and reco&&end t!e appropriate actions or &easures to #e ta$en. Petitioners, !o'ever, ar%ue t!at t!e rut!Co&&ission is vested 'it! <uasi-=udicial po'ers. O""ices 'it! suc! a'eso&e po'ers cannot #e le%all( created #( t!e Presidentt!rou%! &ere executive orders.

Petitioners are correct.

!e de"inition o" investi%ation 'as extensivel( discussed in CariQo v. Co&&ission on :u&an Ri%!ts>+9

/Investi%ate,/ co&&onl( understood, &eans to exa&ine, explore, in<uire or delve or pro#e into, researc! on, stud(. !e dictionar(de"inition o" /investi%ate/ is /to o#serve or stud( closel(> in<uire into s(ste&aticall(> /to searc! or in<uire into> . . . to su#=ect to ano""icial pro#e . . .> to conduct an o""icial in<uir(./ !e purpose o" investi%ation, o" course, is to discover, to "ind out, to learn, o#tainin"or&ation. No'!ere included or inti&ated is t!e notion o" settlin%, decidin% or resolvin% a controvers( involved in t!e "acts in<uiredinto #( application o" t!e la' to t!e "acts esta#lis!ed #( t!e in<uir(.

!e le%al &eanin% o" /investi%ate/ is essentiall( t!e sa&e> /3t4o "ollo' up step #( step #( patient in<uir( or o#servation. o trace ortrac$A to searc! intoA to exa&ine and in<uire into 'it! care and accurac(A to "ind out #( care"ul in<uisitionA exa&inationA t!e ta$in% o"evidenceA a le%al in<uir(A/ /to in<uireA to &a$e an investi%ation,/ /investi%ation/ #ein% in turn descri#ed as /3a4n ad&inistrative"unction, t!e exercise o" '!ic! ordinaril( does not re<uire a !earin%. ) 6& J)d 6d& L Sec. )9A . . . an in<uir(, =udicial or ot!er'ise,"or t!e discover( and collection o" "acts concernin% a certain &atter or &atters./+@ 3Italics in t!e ori%inal4

!e exercise o" <uasi-=udicial po'er %oes #e(ond &ere investi%ation and "act-"indin%. uasi-=udicial po'er !as #een de"ined as

t!e po'er o" t!e ad&inistrative a%enc( to ad=udicate t!e ri%!ts o" persons #e"ore it. It is t!e po'er to !ear and deter&ine<uestions o" "act to '!ic! t!e le%islative polic( is to appl( and to decide in accordance 'it! t!e standards laid do'n #( t!e la' itsel"in en"orcin% and ad&inisterin% t!e sa&e la'. !e ad&inistrative #od( exercises its <uasi-=udicial po'er '!en it per"or&s in a =udicial&anner an act '!ic! is essentiall( o" an executive or ad&inistrative nature, '!ere t!e po'er to act in suc! &anner is incidental to orreasona#l( necessar( "or t!e per"or&ance o" t!e executive or ad&inistrative dut( entrusted to it. In carr(in% out t!eir <uasi-=udicial"unctions t!e ad&inistrative o""icers or #odies are re<uired to investi%ate "acts or ascertain t!e existence o" "acts, !old !earin%s,'ei%! evidence, and dra' conclusions "ro& t!e& as #asis "or t!eir o""icial action and exercise o" discretion in a =udicialnature.+ 3E&p!asis supplied4

Despite respondentsB denial t!at t!e rut! Co&&ission is in"used 'it! <uasi-=udicial po'ers, it is patent "ro& t!e provisions o" E.O.No. 1 itsel" t!at suc! po'ers are indeed vested in t!e rut! Co&&ission, particularl( in Section ), para%rap!s 3#4 and 3%4>

#4 Collect, receive, revie', and evaluate evidence related to or re%ardin% t!e cases o" lar%e scale corruption '!ic! it !as c!osen toinvesti%ate,

x x x
















8/13/2019 G.R. No. 192935 December 7, 2010


%4 urn over "ro& ti&e to ti&e, "or expeditious prosecution, to t!e appropriate prosecutorial aut!orities, #( &eans o" a special orinteri& report and reco&&endation, all evidence on corruption o" pu#lic o""icers and e&plo(ees and t!eir private sector co-principals, acco&plices or accessories, i" an(, '!en in t!e course o" its investi%ation t!e Co&&ission "inds t!at t!ere is reasona#le%round to #elieve t!e( are lia#le "or %ra"t and corruption under pertinent applica#le la'sA

x x x

!e po'ers to /evaluate evidence/ and /"ind reasona#le %round to #elieve t!at so&eone is lia#le "or %ra"t and corruption/ are not&erel( "act-"indin% or investi%ator(. !ese are <uasi-=udicial in nature #ecause t!e( actuall( %o into t!e 'ei%!in% o" evidence,dra'in% up o" le%al conclusions "ro& t!e& as #asis "or t!eir o""icial action and t!e exercise o" discretion o" a =udicial or <uasi-=udicialnature.

!e evaluation o" t!e su""icienc( o" t!e evidence is a <uasi-=udicialF=udicial "unction. It involves an assess&ent o" t!e evidence '!ic!is an exercise o" =udicial discretion. e !ave de"ined discretion

as t!e a#ilit( to &a$e decisions '!ic! represent a responsi#le c!oice and "or '!ic! an understandin% o" '!at is la'"ul, ri%!t or 'ise&a( #e presupposed.

It is t!e /t!e act or t!e li#ert( to decide, accordin% to t!e principles o" =ustice and oneBs ideas o" '!at is ri%!t and proper under t!ecircu&stances, 'it!out 'ill"ulness or "avor./1

Li$e'ise, t!e po'er to esta#lis! i" t!ere is reasona#le %round to #elieve t!at certain persons are lia#le "or %ra"t and corruption under

pertinent applica#le la's is <uasi-=udicial in nature #ecause it is a$in to t!e discretion exercised #( a prosecutor in t!e deter&inationo" pro#a#le cause durin% a preli&inar( investi%ation. It involves a =udicial 3or <uasi-=udicial4 appraisal o" t!e "acts "or t!e purpose o"deter&inin% i" a violation !as in "act #een co&&itted.

6lt!ou%! suc! a preli&inar( investi%ation is not a trial and is not intended to usurp t!e "unction o" t!e trial court, it is not a casuala""air. !e o""icer conductin% t!e sa&e investi%ates or in<uires into t!e "acts concernin% t!e co&&ission o" t!e cri&e 'it! t!e end invie' o" deter&inin% '!et!er or not an in"or&ation &a( #e prepared a%ainst t!e accused. Indeed, a preli&inar( investi%ation is ine""ect a realistic =udicial appraisal o" t!e &erits o" t!e case. Su""icient proo" o" t!e %uilt o" t!e accused &ust #e adduced so t!at '!ent!e case is tried, t!e trial court &a( not #e #ound as a &atter o" la' to order an ac<uittal. 6 preli&inar( investi%ation !as t!en #eencalled a =udicial in<uir(. It is a =udicial proceedin%. 6n act #eco&es =udicial '!en t!ere is opportunit( to #e !eard and "or, t!eproduction and 'ei%!in% o" evidence, and a decision is rendered t!ereon.

!e aut!orit( o" a prosecutor or investi%atin% o""icer dul( e&po'ered to preside or to conduct a preli&inar( investi%ation is no lesst!an t!at o" a &unicipal =ud%e or even a re%ional trial court =ud%e. !ile t!e investi%atin% o""icer, strictl( spea$in% is not a /=ud%e,/ #(t!e nature o" !is "unctions !e is and &ust #e considered to #e a <uasi =udicial o""icer .)

:ence, t!e rut! Co&&ission is vested 'it! <uasi-=udicial discretion in t!e disc!ar%e o" its "unctions.

6s a &ere creation o" t!e executive and 'it!out a la' %rantin% it t!e po'er to investi%ate person and a%encies outside t!e executivedepart&ent, t!e rut! Co&&ission can onl( per"or& ad&inistrative "unctions, not <uasi-=udicial "unctions. /6d&inistrative a%enciesare not considered courtsA t!e( are neit!er part o" t!e =udicial s(ste& nor are t!e( dee&ed =udicial tri#unals./*

Executive Order No. 1 and t!e P!ilippine rut! Co&&ission o" )1, #ein% contrar( to t!e Constitution, s!ould #e nulli"ied.

I t!ere"ore vote t!at t!e petitions #e GRANT!D.


$oooe

1 Pro&otion and Protection o" :u&an Ri%!ts 3Stud( on t!e Ri%!t to t!e rut!4> Report o" t!e O""ice o" t!e nited Nations:i%! Co&&issioner "or :u&an Ri%!ts, nited Nations Econo&ic and Social Council 3EFCN.+F)8F14, @ e#ruar( )8.

) See as&in Na<vi, !e Ri%!t to t!e rut! in International La'> act or iction, International Revie' o" t!e Red Cross3)84, @@>@8)>)+-)8@.






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* I#id., )8@.

+ I#id., )+.

2ut see Eric 2ra!&, !at is a rut! Co&&ission and !( Does it ;atter, Peace and Con"lict Revie' 3Sprin% )4,*>)>1-1+, '!ic! proposes t!at /;ar$ ree&anBs 3)84 t(polo%( o" !u&an ri%!ts investi%ations as t!e de"inition o""erin%t!e &ost anal(tical clarit( and t!e stron%est potential to &ove t!e "ield "or'ard./ ree&an Kruth Commissions and

Procedural 4airness 3)84, Ne' or$> Ca&#rid%e niversit( PressA E.:.R.L.R., )@, ), )+-)9G de"ines a trut!co&&ission as an /ad !oc, autono&ous, and victi&-centered co&&ission o" in<uir( set up in and aut!ori5ed #( a state "ort!e pri&ar( purposes o" 314 investi%atin% and reportin% on t!e principal causes and conse<uences o" #road and relativel(recent patterns o" severe violence or repression t!at occurred in t!e state durin% deter&inate periods o" a#usive rule orcon"lict, and 3)4 &a$in% reco&&endations "or t!eir redress and "uture prevention./

8 Priscilla 2. :a(ner, i"teen rut! Co&&issions 19+ to 1+> 6 Co&parative Stud(, :u&an Ri%!ts uarterl( 3Nov.1+4, 18>+>8.

9 I#id., 8+.

@ !ttp>FF'''.a&nest(.or%FenFli#rar(FassetFPOL*FF)9FenF9@@"@)-d*@a-11dd-a*)-)"+8*)a@cc8Fpol*)9en.!t&l, vie'ed on Nove&#er )1.

Ru#en Carran5a, Plunder and Pain7 hould ransitional -ustice &ngage with Corruption and &conomic Crimes, !e

International Journal o" ransitional Justice, 7ol. ), )@, *)).

1 2ataan S!ip(ard U En%ineerin% Co., Inc. v. Presidential Co&&ission on 0ood 0overn&ent, 0.R. No. 9@@, ;a( )9,1@9, 1 SCR6 1@1, )).

11 Pro&ul%ated on e#ruar( )@, 1@8, creatin% t!e Presidential Co&&ission on 0ood 0overn&ent.

1) Pro&ul%ated on ;arc! ), 1@8, pro&ul%atin% t!e Provisional Constitution 3also $no'n as t!e reedo& Constitution4. 6rticle II, Section 1 t!ereo" stated t!at t!e President s!all continue to exercise le%islative po'er until a le%islature iselected and convened under a ne' constitution x x x.

1* 6n%ara v. Electoral Co&&ission, 8@ P!il. 1*, 18 31*84.

1+ Secretar( o" Justice v. Lantion, 0.R. No. 1*+8, 19 Octo#er ).

1 %na* 0indanao Party5(ist #roup v. he &+ecutive ecretary , 0.R. No. 188), ) 6u%ust )9.

18 Eu%enio v. Civil Service Co&&ission, *1) P!il. 11+, 11) 314 citin% 6; JR )d on Pu#lic O""icers and E&plo(ees.

19 2anda v. Er&ita, 0.R. No. 1888), 6pril ), )1.

1@ I#id.

1 2u$lod n% Ma'anian% EII2 v. Sec. a&ora, +1* P!il. )@1, ).

) O""ice o" t!e O&#uds&an v. Sa&anie%o, 0.R. No. 199*, 11 Septe&#er )@.

)1 C!a&#er o" Real Estate and 2uildersB 6ssociations, Inc. v. Executive Secretar( 6l#erto Ro&ulo 30.R. No. 1898,)14

)) uinto v. Co&elec 30.R. No. 1@8@, )4

)* 6#a$ada 0uro v. :on. Cesar 7. Purisi&a 30.R. No. 18891, )@4

)+ SCR6 +, 19+.













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) Lea%ue o" Cities o" t!e P!ilippines v. CO;ELEC 30.R. No. 1981A 0.R. No. 199+A )@A 0.R. No. 19@8, )@4

)8 Par. 8, La%&an, et alBs Petition

)9 Par. 89, La%&an, et alBs Petition

)@ OS0 ;e&orandu&, pp. @@-.

) Par. 9*, La%&an, et alBs Petition

* Section ). xxx #4 Collect, receive, revie' and evaluate evidence related to or re%ardin% t!e cases o" lar%e scalecorruption '!ic! it !as c!osen to investi%ate, and to t!is end re<uire an( a%enc(, o""icial or e&plo(ee o" t!e Executive2ranc!, includin% %overn&ent-o'ned or controlled corporations, to produce docu&ents, #oo$s, records and ot!er papersxxx.

*1 Section ). xxx %4 urn over "ro& ti&e to ti&e, "or expeditious prosecution, to t!e appropriate prosecutorial aut!orities,#( &eans o" a special or interi& report and reco&&endation, all evidence on corruption o" pu#lic o""icers and e&plo(eesand t!eir private sector co-principals, acco&plices or accessories, i" an(, '!en in t!e course o" its investi%ation t!eCo&&ission "inds t!at t!ere is reasona#le %round to #elieve t!at t!e( are lia#le "or %ra"t and corruption under pertinentapplica#le la's xxx.

*)

Id.

** Section 19. !e President s!all !ave control o" all t!e executive depart&ents, #ureaus, and o""ices. :e s!all ensure t!att!e la's #e "ait!"ull( executed.

*+ 8@ SCR6 *)9 3)@4

* Joson v. Executive Secretar(, et al., 0.R. No. 1*1), ;a( ), 1@A 7illalu5 v. aldivar, et al. 3En 2anc4, 0.R. No. L-))9+, Dece&#er *1, 18.

*8 Ru"ino v. Endri%a, 0.R. No. 1*+, Jul( )1, )8.

*9 6n%-6n%co v. :on. Natalio Castillo, et al., 0.R. No. L-1918, Nove&#er *, 18*.

*@ 6rticle ?I states>

Section 1*. !e O""ice o" t!e O&#uds&an s!all !ave t!e "ollo'in% po'ers, "unctions, and duties>

x x x

3@4 x x x exercise suc! ot!er po'ers or per"or& suc! "unctions or duties as &a( #e provided #( la'.

* 0.R. No. 18@89, 6pril 1*, )9, )1 SCR6 1.

+ See also &min v. 3e (eon 30.R. No. 1*9+, e#ruar( )9, )), *9@ SCR6 1+*4 on t!e concurrent aut!orit( o" t!eCivil Service Co&&ission and t!e DEPED Investi%atin% Co&&ittee under R6 +89. See "urt!er Puse v. antos5Puse 30.R. No. 1@*89@, ;arc! 1, )14 '!ere t!e Court !eld t!at t!e concurrent =urisdiction o" t!e DEPED and CSC tocause preli&inar( investi%ation is also s!ared #( t!e 2oard o" Pro"essional eac!ers under R6 9@*8 or P!ilippineeac!ers Pro"essionali5ation 6ct o" 1+.

+1 0.R. No. 199@, Octo#er 19, )@.

+) See !mbudsman v. 'olson 'odrigue: , 0.R. No. 19)9, Jul( )*, )1 citin% (a+ina, r. v.!mbudsman, 0.R. No.1*1, * Septe&#er ), +91 SCR6 +).

+* evilla 3ecin v. P!< 0el:asar ayco, et al ., 0.R. No. 1+1, e#ruar( 1+, )9A 1onasan 66 v. he Panel of6nvestigating Prosecutors of the 3epartment of -ustice, 0.R. No. 19+9,

6pril 1*, )+.







































8/13/2019 G.R. No. 192935 December 7, 2010


++ 0.R. No. 198@+. 6pril )9, ).

+ See 'eview Center %ssociation of the Philippines v. &+ecutive ecretary &duardo &rmita, et al ., 0.R. No. 1@+8 , 6pril), )A )ermude: v. &+ecutive ecretary , 0.R. No. 1*1+), 6u%ust +, 1.

+8 M; v. Director 0eneral, et al., 0.R. No. 1899@, 6pril 1, )8.

+9 0.R. No. 88@1, ) Dece&#er 11, )+ SCR6 +@*.

+@ Id., pp. +-+8.

+ 3ole Philippines 6nc. v. &steva, 0.R. No. 18111, * Nove&#er )8, SCR6 **), *8-*9.

;anotoc v. Court o" 6ppeals, 0.R. No. 1*9+, 18 6u%ust )8.

1 P!ilippine Lon% Distance elep!one Co. Inc. v. ;an%%a%a'a n% Mo&uni$as(on sa Pilipinas, 0.R. No. 18)9@*, 1+ Jul().

) Co=uan%co, Jr. v. Presidential Co&&ission on 0ood 0overn&ent, 0.R. Nos. )*1-), ) Octo#er ), 1. !is is an En2anc case t!at !ad #een reiterated in t'o ot!er En 2anc cases, na&el(, Olivas v. O""ice o" t!e O&#uds&an 30.R. No.1)+), ) Dece&#er 1+4 and ( v. O""ice o" t!e O&#uds&an 30.R. Nos. 18*-+, )9 June )@, 8 SCR6 9*4.!us it cannot #e said to !ave #een overturned #( 2alan%auan v. Court " 6ppeals, Special Nineteent! Division, Ce#u Cit(30.R. No. 19+*, 1* 6u%ust )@, 8) SCR6 1@+4 a decision o" t!e Court t!rou%! t!e !ird Division '!erein t!e Courtdeclared> /It &ust #e re&e&#ered t!at a preli&inar( investi%ation is not a <uasi-=udicial proceedin%. 3p. )*4/

* ;eralco v. Ener%( Re%ulator( 2oard, 0.R. No. 1+*, 19 ;arc! )8.


S!ARAT! OINION

BRION, J.J

I concur, t!rou%! t!is Separate Opinion, 'it! t!e conclusion t!at t!e Executive Order No. 1 3EO 1 or EO4 creatin% t!e rut!Co&&ission is "atall( de"ective and t!us s!ould #e struc$ do'n.

I #ase &( conclusion>

314 On due process %roundsA

3)4 On t!e unconstitutional i&pact o" t!e EO on t!e esta#lis!ed le%al "ra&e'or$ o" t!e cri&inal =ustice s(ste&A

3*4 On t!e violation o" t!e rule on separation o" po'ersA

3+4 On t!e violations o" t!e personal ri%!ts o" t!e investi%ated persons and t!eir constitutional ri%!t to a "air trialA1 and

34 On t!e violation o" t!e e<ual protection clause.

'o inter-related "eatures o" t!e EO pri&aril( contri#ute to t!e resultin% violations. !e "irst is t!e use o" t!e title rut! Co&&ission,'!ic!, as used in t!e EO, is "rau%!t 'it! !idden and pre=udicial i&plications #e(ond t!e see&in%l( si&ple trut! t!at purportedl(c!aracteri5es t!e Co&&ission. !e second relates to t!e trut!-tellin% "unction o" t!e rut! Co&&ission under t!e ter&s o" t!e EO.o%et!er, t!ese "eatures radiate out'ards 'it! pre=udicial e""ects, resultin% in t!e a#ove violations.

!e "ull disclosure o" t!e trut! a#out irre%ular and cri&inal %overn&ent activities, particularl( a#out %ra"t and corruption, is a ver('ort!( ideal t!at t!ose in %overn&ent &ust "ull( supportA t!e ideal cannot #e disputed, sidetrac$ed or &uc! less denied. It is a&atter t!at t!e Constitution itsel" is deepl( concerned a#out as s!o'n #( 6rticle ?I on 6ccounta#ilit( o" Pu#lic O""icers.











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!is concern, !o'ever, co-exists 'it! &an( ot!ers and is not t!e #e-all and end-all o" t!e C!arter. !e &eans and &anner o"addressin% t!is constitutional concern, "or exa&ple, rate ver( !i%!l( in t!e !ierarc!( o" constitutional values, particularl( t!eir e""ecton t!e structure and operations o" %overn&ent and t!e ri%!ts o" t!ird parties.

!e 'or$in% o" %overn&ent is #ased on a 'ell-laid and purpose"ul constitutional plan, essentiall( #ased on t!e doctrine o"separation o" po'ers, t!at can onl( #e altered #( t!e ulti&ate soverei%n t!e people. S!ort o" t!is soverei%n action, not one o" t!edepart&ents o" %overn&ent neit!er t!e Executive, nor t!e Le%islature, and nor t!e Judiciar( can &odi"( t!is constitutional plan,'!et!er directl( or indirectl(.

Concern "or t!e individual is anot!er overridin% constitutional value. Si%ni"icantl(, t!e Constitution does not distin%uis! #et'een t!e%uilt( and t!e innocent in its covera%e and %rant o" ri%!ts and %uarantees. In "act, it !as ver( speci"ic %uarantees "or all accused#ased on its %eneral concern "or ever( ilipinoBs li"e, li#ert(, securit( and propert(. !e Constituion, too, ensures t!at persons o" t!esa&e class, '!et!er natural or =uridical, are treated e<uall(, and t!at t!e %overn&ent does not discri&inate in its actions.

6ll t!ese, t!is Court &ust 5ealousl( %uard. e in t!e Court cannot ever allo' a distur#ance o" t!e e<uili#riu& o" t!e constitutionalstructure in "avour o" one or t!e ot!er #ranc!, especiall( in "avour o" t!e Judiciar(. ;uc! less can 'e pre-=ud%e an( potentialaccused, even in t!e na&e o" trut!-tellin%, retri#ution, national !ealin% or social =ustice. !e =ustice t!at t!e Constitution envisions islar%el( expressed and e&#odied in t!e Constitution itsel" and t!is concept o" =ustice, &ore t!an an(t!in% else, t!e Judiciar( &ustserve and satis"(. In doin% t!is, t!e Judiciar( &ust stand as a neutral and apolitical =ud%e and cannot #e an advocate ot!er t!an "ort!e pri&ac( o" t!e Constitution.

!ese, in #rie", re"lect t!e underl(in% reasons "or t!e cited %rounds "or t!e invalidit( o" E.O. 1.

I. :E EO 6ND :E /R:/ CO;;ISSION.

6. :E ER;S O :E EO 6ND :E RLESAN6RE O :E /R: CO;;ISSION/

!e P!ilippine rut! Co&&ission 3rut! Co&&ission or Co&&ission4 is a #od( /created/ #( t!e President o" t!e P!ilippines #( 'a(o" an Executive Order 3EO 1 or EO4 entitled /Executive Order No. 1, Creatin% t!e P!ilippine rut! Co&&ission o" )1./ !e rut!Co&&issionBs express and avo'ed purpose is )

/to see$ and "ind t!e trut! on, and to'ard t!is end, investi%ate reports o" %ra"t and corruption o" suc! scale and &a%nitude t!ats!oc$ and o""end t!e &oral and et!ical sensi#ilities o" t!e people, co&&itted #( pu#lic o""icials and e&plo(ees, t!eir co-principals,acco&plices and accessories "ro& t!e private sector, i" an(, durin% t!e previous ad&inistration, and t!erea"ter reco&&end t!eappropriate action to #e ta$en t!ereon to ensure t!at t!e "ull &easure o" =ustice s!all #e served 'it!out "ear or "avor./

nder t!ese ter&s and #( t!e Solicitor 0eneralBs ad&issions and representations, t!e rut! Co&&ission !as t!ree #asic "unctions,na&el(, "act-"indin%,* polic( reco&&endation,+ and trut!-tellin%, all 'it! respect to reported &assive %ra"t and corruption co&&itted#( o""icials and e&plo(ees o" t!e previous ad&inistration.

!e EO de"ines t!e rut! Co&&ission as an /independent colle%ial #od(/ 'it! a C!air&an and "our &e&#ersA8and provides "or t!esta"" ,9 "acilities@ and #ud%etar( suppor t it can rel( on, all o" '!ic! are sourced "ro& or coursed t!rou%! t!e O""ice o" t!e President. Itspeci"icall( e&po'ers t!e rut! Co&&ission to /collect, receive, revie' and evaluate evidence./1 It de"ines !o' t!e Co&&ission'ill operate and !o' its proceedin%s 'ill #e conducted.11 Nota#l(, its !earin%s s!all #e open to t!e pu#lic, except onl( '!en t!e( are!eld in executive sessions "or reasons o" national securit(, pu#lic sa"et( or '!en de&anded #( 'itnessesB personal securit(concerns.1) It is tas$ed to su#&it its "indin%s and reco&&endations on %ra"t and corruption to t!e President, Con%ress and t!eO&#uds&an,1* and su#&it special interi& reports and a co&pre!ensive "inal report '!ic! s!all #e pu#lis!ed.1+ itnesses orresource persons are %iven t!e ri%!t to counsel,1 as 'ell as securit( protection to #e provided #( %overn&ent police a%encies.18

!e Rules o" Procedure o" t!e P!ilippine rut! Co&&ission o" )1 3Rules4, pro&ul%ated pursuant to Section )3=4 o" EO 1, "urt!er"les! out t!e operations o" t!e Co&&ission.19 Section + assures t!at /due process s!all at all ti&es #e o#served in t!e application o"

t!e Rules./ It provides "or "or&al co&plaints t!at &a( #e "iled #e"ore it,1@

and t!at a"ter evaluation, t!e parties '!o appearresponsi#le under t!e co&plaints s!all #e provided copies o" t!e co&plaints and supportin% docu&ents, and #e re<uired toco&&ent on or "ile counter-a""idavits 'it!in ten 314 da(s.1 !e Rules declare t!at t!e Co&&ission is not #ound #( t!e tec!nicalrules o" evidence,) reiterate t!e protection a""orded to 'itnesses provided under t!e EO,)1 and con"ir& t!at !earin%s s!all #e opento t!e pu#lic.))

2. :E ILE /R: CO;;ISSION/ 6ND DE PROCESS

2ot! t!e partiesB &e&oranda d'elt on t!e ori%ins and nature o" t!e ter& /rut! Co&&ission,/ 'it! #ot! usin% t!eir readin% o" t!eter&Bs !istor( and usa%es to support t!eir respective positions.)* !at co&es across in availa#le literature is t!at no nation !as a



























































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loc$ on t!e &eanin% o" t!e ter&A t!ere is onl( a lon% line o" practice t!at attac!es t!e ter& to a #od( esta#lis!ed upon restoration o"de&ocrac( a"ter a period o" &assive violence and repression.)+ !e ter& trut! co&&ission !as #een speci"icall( used as a title "ort!e #od( investi%atin% t!e !u&an ri%!ts violations) t!at attended past violence and repression,)8 and in so&e instances "or a #od('or$in% "or reconciliation in societ(.)9

!e traditional circu&stances t!at %ive rise to t!e use o" a trut! co&&ission alon% t!e lines o" esta#lis!ed international practice arenot present in t!e P!ilippine settin%. !e P!ilippines !as a ne' de&ocraticall(-elected President, '!ose election !as #een "ull(accepted 'it!out protest #( all presidential candidates and #( t!e people. 6 peace"ul transition o" ad&inistration too$ place, '!ere

Con%ress !ar&oniousl( convened, 'it! t!e past President no' sittin% as a &e&#er o" t!e :ouse o" Representatives. !ile c!ar%eso" !u&an ri%!ts violations &a( !ave #een lod%ed a%ainst t!e %overn&ent durin% t!e past ad&inistration, t!ese c!ar%es are nott!ose addressed #( EO 1.)@ Rat!er, EO 1 "ocuses entirel( on %ra"t and corruption. Si%ni"icantl(, reconciliation does not appear to #ea %oal eit!er in t!e EO, in t!e pleadin%s "iled #( t!e parties, or in t!e oral ar%u&ents t!us, re&ovin% a =usti"ication "or an(&assive in"or&ation ca&pai%n ai&ed at !ealin% divisions t!at &a( exist in t!e nation.

6s a &atter o" la', t!at a #od( called a rut! Co&&ission is tas$ed to investi%ate past instances o" %ra"t and corruption 'ould notper se #e an irre%ularit( t!at s!ould cause its invalidation. !e use o" t!e 'ord /trut!/ is not ordinaril( a %round "or o#=ection. Noteven t!e Constitution itsel" de"ines or tells us '!at trut! isA t!e C!arter, "les!ed out #( t!e statutes, can onl( outline t!e process o"arrivin% at t!e trut!. 6"ter t!e Constitution and t!e statutes, !o'ever, !ave laid do'n t!e prescri#ed procedure, t!en t!at procedure&ust #e o#served in securin% t!e trut!. 6n( deviation could #e a violation dependin% on t!e attendant circu&stances.

No international la' can also prevent a soverei%n countr( "ro& usin% t!e ter& as t!e title o" a #od( tas$ed to investi%ate %ra"t andcorruption a""ectin% its citi5ens 'it!in its #orders. 6t t!e sa&e ti&e, international la' cannot #e invo$ed as a source o" le%iti&ac( "ort!e use o" t!e title '!en it is not #ased on t!e internationall(-reco%ni5ed conditions o" its use.

No local la' li$e'ise speci"icall( pro!i#its or re%ulates t!e use o" t!e ter& /trut! co&&ission./ 6part "ro& t!e procedural /deviation/a#ove adverted to, '!at &a( render t!e use o" t!e ter& le%all( o#=ectiona#le is t!e standard o" reason, applica#le to all %overn&entactions, as applied to t!e attendant circu&stances surroundin% t!e use in t!e EO o" t!e title rut! Co&&ission.) !e use o" t!isstandard is unavoida#le since t!e title rut! Co&&ission is used in a pu#lic instru&ent t!at de"ines t!e Co&&issionBs "unctions anda""ects #ot! t!e %overn&ent and private parties.* !e Co&&issionBs 'or$ a""ects t!ird parties as it is speci"icall( tas$ed toinvesti%ate and prosecute o""icials and e&plo(ees o" t!e previous ad&inistration. !is line o" 'or$ e""ectivel( relates it to t!eprocesses o" t!e cri&inal =ustice s(ste&.

In t!e si&plest due process ter&s, t!e EO as a %overn&ental action &ust !ave a reasona#le o#=ective and &ust use e<uall(reasona#le &eans to ac!ieve t!is o#=ective.*1 !en t!e EO vie'ed "ro& t!e pris& o" its title and its trut!-tellin% "unction isconsidered a &eans o" ac!ievin% t!e o#=ective o" "i%!tin% %ra"t and corruption, it 'ould #e invalid i" it unreasona#l( or oppressivel(a""ects parties, '!et!er t!e( #e %overn&ent or private.

C . :E CO;;ISSIONBS NCIONS

6s 'orded, t!e EO esta#lis!es t!e Co&&ission as an investi%ative #od( tas$ed to act on cases o" %ra"t and corruption co&&itteddurin% t!e previous ad&inistration. !is is an area t!at t!e la' !as assi%ned to t!e pri&ar( =urisdiction o" t!e O&#uds&an toinvesti%ate and prosecute.*) I" pro#a#le cause exists, t!ese sa&e cases "all under t!e exclusive =urisdiction o" t!eSandi%an#a(an** '!ose decisions are appeala#le to t!e Supre&e Court.*+

!et!er a Co&&ission can en%a%e in "act-"indin%, '!ose input can aid t!e President in polic( "or&ulation, is not a disputed issue.!at is activel( disputed is '!et!er t!e rut! Co&&ission s!all underta$e its tas$s in a purel( investi%ative "act-"indin% capacit( orin t!e exercise o" <uasi-=udicial po'ers. !is issue i&pacts on t!e level o" "airness t!at s!ould #e o#served 3and t!e standard o"reason t!at s!ould appl(4, and t!us carries due process i&plications. E<uall( i&portant to t!e issue o" due process are t!e "unctiono" trut!-tellin% and t!e e""ects o" t!is "unction '!en considered 'it! t!e title /rut! Co&&ission./

C.1. !e rut!-ellin% unction

!e Solicitor 0eneral "ull( ver#ali5ed t!e trut!-tellin% "unction '!en !e declared t!at it is a &eans o" lettin% t!e people $no' t!e

trut! in t!e alle%ations o" %ra"t and corruption a%ainst t!e past ad&inistration.* !e Solicitor 0eneral, in response to t!e <uestions o"J. Sereno, said>

Justice Sereno> . . .I %o no' to t!e trut!-tellin% part o" t!e co&&ission. In ot!er 'ords, can (ou descri#e to us t!e trut! tellin% andtrut! see$in% part o" t!e co&&ission

Solicitor 0eneral Cadi5> our :onor, o" course our people 'ill "ind closure i" aside "ro& t!e trut! "indin% o" "acts,=oe 4=o =+ebee o- b; =e bo-; o =+e comme- 6r+ +- corr:o 4 be :roece- #( t!e O&#uds&an. It is. . .our :onor,t!ere is a cri&e co&&itted and t!ere"ore punis!&ent &ust #e &eted out. :o'ever, our :onor, r=He6 :+r, =e mere+rr+o o +c, =e e6 o =e r=, 4 e4e I = o + cer+ -e6ree, +; or :eo:e.






































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Justice Sereno> 6re (ou sa(in% t!ere"ore t!e trut!-tellin%, t!at t!e narration li$e t!e ot!er narrations in t!e past co&&issions !as anindependent value apart "ro& t!e reco&&endations to indict '!ic! particular persons

Solicitor 0eneral Cadi5> I a%ree our :onor. 6nd it is certainl(, as t!e EO sa(s, itBs a rut! Co&&ission =e +rr+o o +c b;=e member o =e Commo, I =, 4 be +::rec+e- b; =e :eo:e -e:e-e o =e -cme =+ e<:ece-e4e. KE&p!asis supplied.G

:is state&ent is =usti"ied #( t!e EOBs &andate to see$ and "ind t!e trut! under Section 1A t!e openin% to t!e pu#lic o" t!e !earin%and proceedin%s under Section 8A and t!e pu#lication o" t!e Co&&issionBs "inal report under Section 1 o" t!e EO.*8

C.). Le%al I&plications o" rut!-ellin%

rut!-tellin%, as its na&e connotes, does not exist solel( "or t!e sa$e o" /trut!/A t!e /tellin%/ side is e<uall( i&portant as t!e Solicitor0eneral i&pressed upon t!is Court durin% t!e oral ar%u&ents.*9 !us, to ac!ieve its o#=ectives, trut!-tellin% needs an audience to'!o& t!e trut! s!all #e told.*@ !is re<uire&ent opens up t!e realit( t!at EO 1 reall( spea$s in t'o "oru&s.

!e "irst "oru&, as expressl( provided in t!e EO, is co&posed o" t!e persons to #e investi%ated and t!e recipients o" t!eCo&&issionBs reports '!o are expected to act on t!ese reports, speci"icall(, t!e President 3'!o needs investi%ative and polic("or&ulation assistance4A Con%ress 3'!o &a( use t!e Co&&issionBs in"or&ation "or its o'n le%islative purposes4A and t!eO&#uds&an as t!e investi%ative and prosecutor( constitutional o""ice* to '!ic!, under t!e EO, t!e Co&&ission &ust "or'ard itsinteri& and "inal reports. !e Co&&issionBs !earin%s and proceedin%s are i&portant venues "or t!is "oru&, as t!is is '!ere t!einvesti%ated persons can de"end t!e&selves a%ainst t!e accusations &ade. !e ele&ent o" polic( "or&ulation, on t!e ot!er !and, is

present t!rou%! t!e Co&&issionBs interi& and "inal reports "ro& '!ic! appropriate re&edial polic( &easures can #e distilled. !eele&ent o" trut!-tellin% in t!e sense o" co&&unicatin% to t!e pu#lic t!e develop&ents as t!e( !appen and t!rou%! t!e interi& and"inal reports exists #ut onl( pla(s a secondar( role, as t!e pu#lic is not a direct participant in t!is "oru&.

!e second "oru& not as explicitl( de"ined as t!e "irst #ut '!ic! &ust i&plicitl( and necessaril( #e t!ere is t!at s!ared 'it! t!e%eneral pu#lic as t!e audience to '!o& t!e President 3t!rou%! t!e EO and t!e rut! Co&&ission4 'is!es to tell t!e stor( o" t!ealle%edl( &assive %ra"t and corruption durin% t!e previous ad&inistration. !is is t!e distinct do&ain o" trut!-tellin% as t!e Solicitor0eneral !i&sel" i&pliedl( ad&its in !is <uoted ar%u&ents.+ Section 8 o" t!e EO "ull( supports trut!-tellin%, as it opens up t!eCo&&issionBs !earin%s or proceedin%s to t!e pu#lic 3and !ence, to t!e &ass &edia4, su#=ect onl( to an executive session /'!ere&atters o" national securit( or pu#lic sa"et( are involved or '!en t!e personal sa"et( o" t!e 'itness 'arrants t!e !oldin% o" suc!executive or closed-door session !earin%./

!ese separate "oru&s are not distin%uis!ed &erel( "or purposes o" acade&ic stud(A t!e( are t!ere, plainl( "ro& t!e ter&s o" t!eEO, and carr( clear distinctions "ro& '!ic! separate le%al conse<uences arise.

2ot! "oru&s involve t!ird parties, eit!er as persons to #e investi%ated or as part o" t!e %eneral pu#lic 3in '!ose #e!al" cri&inalco&plaints are no&inall( #rou%!t and '!o are t!e recipients o" t!e Co&&issionBs trut!-tellin% co&&unications4 so t!at, at t!e ver(least, standards o" "airness &ust #e o#served.+1 In t!e investi%ative "unction, t!e standard depends on '!et!er t!e tas$s per"or&edare purel( investi%ative or are <uasi-=udicial, #ut t!is distinction is not ver( relevant to t!e discussions o" t!is opinion. In trut!-tellin%,on t!e ot!er !and, t!e level o" t!e re<uired "airness 'ould depend on t!e o#=ective o" t!is "unction and t!e level o" "inalit( attained'it! respect to t!is o#=ective.+)

In t!e "irst "oru&, no ele&ent o" "inalit( c!aracteri5es t!e Co&&issionBs reports since "ro& t!e perspective o" t!e EOBs expresspurposes o" prosecution and polic( "or&ulation t!e( are &erel( reco&&endator( and are su#&itted "or t!e PresidentBs, Con%ressBand t!e O&#uds&anBs consideration. 2ot! t!e President and Con%ress &a( re=ect t!e reports "or purposes o" t!eir respective polic("or&ulation activitiesA t!e O&#uds&an &a( li$e'ise t!eoreticall( and no&inall( re=ect t!e& 3alt!ou%! 'it! possi#l( disastrousresults as discussed #elo'4.

In t!e second "oru&, a ver( !i%! ele&ent o" "inalit( exists as t!e in"or&ation co&&unicated t!rou%! t!e !earin%s, proceedin%s andt!e reports are directl( /told/ t!e people as t!e /trut!/ o" t!e %ra"t and corruption t!at transpired durin% t!e previous ad&inistration.In ot!er 'ords, t!e Co&&issionBs outputs are alread( t!e end products, 'it! t!e people as t!e direct consu&ers. In t!is sense, t!e

ele&ent o" "airness t!at &ust exist in t!e second "oru& &ust approxi&ate t!e ri%!ts o" an accused in a cri&inal trial as t!econse<uence o" trut!-tellin% is no less t!an a "inal /conviction/ #e"ore t!e #ar o" pu#lic opinion #ased on t!e /trut!/ t!e Co&&ission/"inds./ !us, i" t!e Co&&ission is to o#serve t!e ri%!ts o" due process as Rule 1, Section + o" its Rules %uarantees, t!en t!e ri%!to" investi%ated persons to cross-exa&ine 'itnesses a%ainst t!e&,+* t!e ri%!t a%ainst sel"-incri&ination,++ and all t!e ri%!ts attendantto a "air trial &ust #e o#served. !e ri%!ts o" persons under investi%ation under Section 1) o" t!e 2ill o" Ri%!ts o" t!eConstitution+ &ust li$e'ise #e respected.

II. :E EOBS LE06L INIR;IIES.

6. :E ILE /R: CO;;ISSION/ Z :E R:-ELLIN0 NCION T 7IOL6ION O DE PROCESS




























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%.1. !e I&pact o" t!e Co&&issionBs /rut!/

!e "irst pro#le& o" t!e EO is its use o" t!e title /rut! Co&&ission/ and its o#=ective o" trut!-tellin%A t!ese assu&e t!at '!at t!erut! Co&&ission spea$s o" is t!e /trut!/ #ecause o" its title and o" its trut!-tellin% "unctionA t!us, an(t!in% ot!er t!an '!at t!eCo&&ission reports 'ould eit!er #e a distortion o" t!e trut!, or &a( even #e an /untrut!./

!is pro#le& sur"aced durin% t!e oral ar%u&ents on <ueries a#out t!e e""ect o" t!e title /rut! Co&&ission/ on t!e aut!orit( o" t!e

dul( constituted tri#unals t!at &a( t!erea"ter rule on t!e &atters t!at t!e Co&&ission s!all report on.+8

Since t!e Co&&issionBsreport 'ill constitute t!e /trut!,/ an( su#se<uent contrar( "indin% #( t!e O&#uds&an+9 'ould necessaril( #e suspect as an /untrut!A/it is up t!en to t!e O&#uds&an to convince t!e pu#lic t!at its "indin%s are true.

o appreciate t!e extent o" t!is pro#le&, i t &ust #e considered t!at t!e !earin%s or proceedin%s, '!ere c!ar%es o" %ra"t andcorruption s!all #e aired, s!all #e open to t!e pu#lic. !e Co&&issionBs report s!all li$e'ise #e pu#lis!ed.+@ !ese "eatures cannot#ut &ean "ull &edia covera%e.

2ased on co&&on and usual P!ilippine experience 'it! its ver( active &edia exe&pli"ied #( t!e recent ta$in% o" C!inese andCanadian !osta%es at t!e Luneta, a "ull openin% to t!e &edia o" t!e Co&&issionBs !earin%s, proceedin%s and reports &eans averita#le &edia "east t!at, in t!e case o" t!e rut! Co&&ission, s!all occur on s&all #ut detailed dail( doses, "ro& t!e na&in% o" allt!e persons under investi%ation all t!e 'a( up to t!e Co&&issionBs "inal report. 2( t!e ti&e t!e Co&&ission report is issued, oreven #e"ore t!en, t!e pu#lic s!all !ave #een saturated 'it! t!e details o" t!e c!ar%es &ade t!rou%! t!e pu#licl(-aired 'ritten andtesti&onial su#&issions o" 'itnesses, variousl( vie'ed "ro& t!e vanta%e points o" strai%!t reportin%, t!ree-&inute 7 ne's clips, ort!e slants and personal vie's o" &edia opinion 'riters and extended 7 covera%e. 6ll t!ese are !i%!li%!ted as t!e po'er o" t!e&edia and t!e environ&ent t!at it creates can never #e underesti&ated. :earin% t!e sa&e /trut!/ on radio and television and

seein% it in print o"ten enou%! can a""ect t!e 'a( o" t!in$in% and t!e perception, even o" t!ose '!o are deter&ined, in t!eirconscious &inds, to avoid #ias.+

6s expected, t!is is a vie' t!at t!ose supportin% t!e validit( o" t!e EO eit!er dis&isses as an ar%u&ent t!at &erel( relies on areplacea#le na&e, or 'it! &ore %eneral ar%u&ent couc!ed under t!e <uestion /!o ears t!e rut!./1

!e dis&issive ar%u&ent, to #e sure, 'ould !ave #een &eritorious i" onl( t!e na&e rut! Co&&ission !ad not #een supported #(t!e Co&&issionBs trut!-tellin% "unctionA or, i" t!e na&e /rut! Co&&ission/ 'ere a uni<uel( i lipino appellation t!at does not carr(an esta#lis!ed &eanin% under international practice and usa%e. Even i" it 'ere to #e clai&ed t!at t!e EOBs use o" t!e na&e isuni<ue #ecause t!e P!ilippinesB version o" t!e rut! Co&&ission addresses past %ra"t and corruption and not violence and !u&anri%!ts violations as in ot!er countries, t!e na&e rut! Co&&ission, !o'ever, cannot si&pl( #e dissociated "ro& its internationalusa%e. !e ter& connotes a#uses o" untold proportions in t!e past #( a repressive unde&ocratic re%i&e a connotation t!at &a(#e applica#le to t!e alle%ations o" %ra"t and corruption, #ut is incon%ruous '!en it did not arise "ro& a seriousl( trou#led re%i&eAeven t!e present ad&inistration cannot dispute t!at it assu&ed o""ice in a peace"ul transition o" po'er a"ter relativel( clean andpeace"ul elections.

!e /!o ears t!e rut!/ ar%u&ents, on t!e ot!er !and, co&pletel( &iss t!e point o" t!is Separate Opinion.his !pinion doesnot dispute that past graft and corruption must investigated and fully e+posed A an( state&ent to t!e contrar( in t!e Dissent areun"ounded r!etoric 'ritten solel( "or its o'n partisan audience. !at t!is Opinion clearl( posits as le%all( o#=ectiona#le is t!e%overn&entBs &anner o" /tellin%A/ an( suc! action #( %overn&ent &ust #e &ade accordin% to t!e nor&s and li&its o" t!eConstitution to '!ic! all depart&ents o" %overn&ent includin% t!e Executive are su#=ect. Speci"icall(, t!e Executive cannot #ele"t unc!ec$ed '!en its &et!ods %rossl( violate t!e Constitution. !is &atter is discussed in "ull #elo'.

6.). rut!-tellin% and t!e O&#uds&an

o return to t!e scenario descri#ed a#ove, it is t!is scenario t!at 'ill con"ront t!e O&#uds&an '!en t!e Co&&issionBs report issu#&itted to it. 6t t!at point, t!ere 'ould !ave #een a "ull and extended pu#lic de#ate !eavil( in"luenced #( t!e Co&&issionBs/trut!"ul/ conclusions. !us, '!en and i" t!e O&#uds&an "inds t!e evidence "ro& t!e report unconvincin% or #elo' t!e level t!atpro#a#le cause re<uires, it stands to incur t!e pu#lic ire, as t!e pu#lic s!all !ave #( t!en #een "ull( in"or&ed o" t!e /"acts/ and t!e/trut!/ in t!e Co&&issionBs report t!at t!e O&#uds&an s!all appear to !ave disre%arded.

!is conse<uence does not see& to #e a serious concern "or t!e "ra&ers and de"enders o" t!e EO, as t!e Co&&issionBs trut!-tellin% "unction #( t!en 'ould !ave #een exercised and "ull( served. In t!e Solicitor 0eneralBs 'ords /=our 1onor, there is crimecommitted and therefore punishment must be meted out. 1owever, your 1onor, truth5telling part, the mere narration of facts, thetelling of the truth, will li*ewise 6 thin* to a certain degree satisfy our people./ On t!e <uestion o" '!et!er trut!-tellin% !as anindependent value separate "ro& t!e indict&ent - !e said> /6nd it is certainl(, as t!e EO sa(s, itBs a rut! Co&&ission t!e narrationo" "acts #( t!e &e&#ers o" t!e Co&&ission, I t!in$, 'ill #e appreciated #( t!e people independent o" t!e indict&ent t!at is expectedli$e'ise./)

In ot!er 'ords, "aced 'it! t!e "indin%s o" t!e Co&&ission, t!e O&#uds&an '!o enters a contrar( rulin% e""ectivel( carries t!e#urden o" provin% t!at its "indin%s, not t!ose o" t!e Co&&ission, are correct. o sa( t!e least, t!is resultin% reversal o" roles is















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le%all( stran%e since t!e O&#uds&an is t!e #od( o""iciall( esta#lis!ed and desi%nated #( t!e Constitution to investi%ate %ra"t andot!er cri&es co&&itted #( pu#lic o""icers, '!ile t!e Co&&ission is a &ere /creation/ o" t!e Executive Order. !e O&#uds&an, too,#( statutor( &andate !as pri&ar( =urisdiction over t!e investi%ation and prosecution o" %ra"t and corruption, '!ile t!e Co&&issionBsrole is &erel( reco&&endator(.

!us, '!at t!e EO patentl( expresses as a pri&ar( role "or t!e Co&&ission is ne%ated in actual application #( t!e title rut!Co&&ission and its trut!-tellin% "unction. Expressed in ter&s o" t!e "oru&s t!e EO spa'ned, t!e EOBs principal intent to use t!erut! Co&&ission as a second "oru& instru&ent is un&as$edA t!e "irst "oru& t!e o""iciall( sanctioned "oru& "or t!e prosecution o"

cri&es #eco&es &erel( a convenient cover "or t!e second "oru&.

6.*. rut!-tellin% and t!e Courts

!e e""ects o" trut!-tellin% could %o #e(ond t!ose t!at a""ect t!e O&#uds&an. I" t!e O&#uds&an concurs 'it! t!e Co&&ission and#rin%s t!e reco&&ended %ra"t and corruption c!ar%es #e"ore t!e Sandi%an#a(an a constitutionall(-esta#lis!ed court t!is courtitsel" 'ould #e su#=ect to t!e sa&e trut!-tellin% c!allen%e i" it decides to ac<uit t!e accused. or t!at &atter, even t!is Court, 'ill #eperceived to !ave sided 'it! an /untrut!/ '!en and i" it %oes a%ainst t!e Co&&issionBs report. !us, t!e aut!orit(, independence,and even t!e inte%rit( o" t!ese constitutional #odies t!e O&#uds&an, t!e Sandi%an#a(an, and t!e Supre&e Court 'ould !ave#een e""ectivel( co&pro&ised, to t!e pre=udice o" t!e =ustice s(ste&. 6ll t!ese, o" course, #e%in 'it! t!e pre&ise t!at t!e rut!Co&&ission !as t!e &andate to "ind t!e /trut!,/ as it na&e i&plies, and !as a trut!-tellin% "unction t!at it can "ull( exercise t!rou%!its o'n e""orts and t!rou%! t!e &edia.

6.+. rut!-tellin% and t!e Pu#lic.

A.+.1. Pri&in% and Ot!er Pre=udicial E""ects.

6t t!is point in t!e political develop&ent o" t!e nation, t!e pu#lic is alread( a ver( critical audience '!o can exa&ine announcedresults and can "or& its o'n conclusions a#out t!e culpa#ilit( or innocence o" t!e investi%ated persons, irrespective o" '!atconclusions investi%ative co&&issions &a( arrive at. !is is a realit( t!at cannot #e dou#ted as t!e pu#lic !as #een exposed in t!epast to t!ese investi%ative co&&issions.

!e present rut! Co&&ission operatin% under t!e ter&s o" t!e EO, !o'ever, introduces a new twist t!at t!e pu#lic and t!ecountr( !ave not &et #e"ore. or t!e "irst ti&e, a rut! Co&&ission, tas$ed 'it! a trut!-tellin% "unction, s!all spea$ on t!e /trut!/ o"'!at acts o" %ra"t and corruption 'ere actuall( co&&itted and '!o t!e %uilt( parties are. !is o""icial co&&unication "ro& a%overn&ental #od( t!e rut! Co&&ission '!ose express &andate is to "ind and /tell t!e trut!/ cannot #ut &a$e a di""erence int!e pu#lic perception.

6t t!e ver( least, t!e 'idel(-pu#lici5ed conclusions o" t!e rut! Co&&ission s!all serve as a &ec!anis& "or /pri&in%/ * t!e pu#lic,

even t!e O&#uds&an and t!e courts, to t!e Co&&issionBs 'a( o" t!in$in%. Pervasivel( repeated as an o""icial %overn&entpronounce&ent, the Commission’s influence can go beyond the level of priming and can affect the public environment aswell as the thinking of both the decision makers in the criminal justice system and the public in general .

Ot!er'ise stated, t!e Co&&issionBs pu#licl( announced conclusions cannot #ut assu&e t!e appearance o" trut! once t!e(penetrate and e""ectivel( color t!e pu#licBs perception, t!rou%! repetition 'it!out si%ni"icant contradiction as o""icial %overn&ent"indin%s. !ese conclusions t!us %raduate to t!e level o" /trut!/ in sel"-"ul"ill&ent o" t!e na&e t!e Co&&ission #earsA the subtlemanipulation of the Commission2s name and functions, fades in the bac*ground or simply becomes e+plainable incidents thatcannot defeat the accepted truth.

6 ver( interestin% related &aterial a#out t!e e""ect o" core #elie"s on t!e decision-&a$in% o" =ud%es is t!e point raised #( nitedStates Supre&e Court 6ssociate Justice 2en=a&in N. Cardo5o+ in !is #oo$ !e Nature o" t!e Judicial Process '!ere !e said>

O" t!e po'er o" "avour or pre=udice in an( sordid or vul%ar or evil sense, I !ave "ound no trace, not even t!e "aintest, a&on% t!e =ud%es '!o& I !ave $no'n. 2ut ever( da( t!ere is #orne in on &e a ne' conviction o" t!e inescapa#le relation #et'een t!e trut!

'it!out us and t!e trut! 'it!in. !e spirit o" t!e a%e, as it is revealed to eac! o" us, is too o"ten onl( t!e spirit o" t!e %roup in '!ic!t!e accidents o" #irt! or education or occupation or "ello's!ip !ave %iven us place. No e""ort or revolution o" t!e &ind 'ill overt!ro'utterl( and at all ti&es t!e e&pire o" t!e su#conscious lo(alties. /Our #elie"s and opinions,/ sa(s Ja&es :arve( Ro#inson, /li$e ourstandards o" conduct co&e to us insensi#l( as products o" our co&panions!ip 'it! our "ello' &en, not as results o" our personalexperience and t!e in"erences 'e individuall( &a$e "ro& our o'n o#servations. e are constantl( &isled #( our extraordinar("acult( o" Hrationali5in%B t!at is, o" devisin% plausi#le ar%u&ents #( acceptin% '!at is i&posed upon us #( t!e traditions o" t!e%roup to '!ic! 'e #elon%. e are a#=ectl( credulous #( nature, and instinctivel( accept t!e verdict o" t!e %roup. e are su%%esti#lenot &erel( '!en under t!e spell o" an excited &o#, or a "ervent revival, #ut 'e are ever and al'a(s listenin% to t!e still s&all voiceo" t!e !erd, and are ever read( to de"end and =usti"( t!e instructions and 'arnin%s, and accept t!e& as t!e &ature results o" ouro'n reasonin%./ !is 'as 'ritten, not o" =ud%es speciall(, #ut o" &en and 'o&en o" all classes.8 KE&p!asis suppliedG











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!us, Justice Cardo5o accepted t!at /su#conscious lo(alties/ to t!e /spirit/ o" t!e %roup, i.e., t!e core #elie"s 'it!in, is a &a=or "actort!at a""ects t!e decision o" a =ud%e. In t!e context o" EO 1, t!at /spirit/ or core #elie" is '!at a %enerall( trusted%overn&entBs9 repeated invocation o" /trut!/ apparentl( ai&s to reac!. !is %oal assu&es si%ni"icance %iven t!e Solicitor 0eneralBsstate&ent t!at trut!-tellin% is an end in i tsel". Read 'it! '!at Justice Cardo5o said, t!is %oal translates to t!e &ore concrete andcurrentl( understanda#le ai& o e+b= =e "r=" + :+r o =e +cce:e- :bc bee A t!e EOBs ai& is ac!ievedirrespective o" '!at t!e pertinent ad=udicator( #odies &a( conclude, as even t!e( could #e in"luenced #( t!e %enerall( accepted/trut!./

urt!er on, Justice Cardo5o, spea$in% in t!e context o" t!e develop&ent o" case la' in co&&on la', 'ent on to sa(, <uotin%:enderson>@

!en an ad!erent to a s(ste&atic "ait! is #rou%!t continuousl( in touc! 'it! in"luences and exposed to desires inconsistent 'it!t!at "ait!, a process o" unconscious cere#ration &a( ta$e place, #( '!ic! a %ro'in% store o" !ostile &ental inclinations &a(accu&ulate, stron%l( &otivatin% action and decision, #ut seldo& e&er%in% clearl( into consciousness. In t!e &eanti&e, t!e "or&ulaso" t!e old "ait! are retained and repeated #( "orce o" !a#it, until one da( t!e reali5ation co&es t!at conduct and s(&pat!ies and"unda&ental desires !ave #eco&e so inconsistent 'it! t!e lo%ical "ra&e'or$ t!at it &ust #e discarded. !en #e%ins t!e tas$ o"#uildin% up and rationali5in% a ne' "ait!.

6lt!ou%! 'ritten in anot!er context, t!is state&ent relatin% to !o' oneBs #elie" is supplanted #( anot!er runs parallel to !o' t!e#elie" s(ste& o" an individual =ud%e can #e su#tl( a""ected #( inconsistent in"luences and !o' !e ulti&atel( succu&#s to a ne'#elie".

it!out dou#t, t!e process o" convertin% to a ne' #elie" is an unavoida#le and continuous process t!at ever( decision &a$er

under%oes as t!e #elie" s(ste& !e started 'it!, c!an%es and evolves t!rou%! in-court experiences and exposure to outsidein"luences. Suc! exposure cannot #e "aulted, particularl( '!en #rou%!t on #( t!e &edia 'or$in% pursuant to its exercise o" t!e"reedo&s o" t!e press and speec!, and spea$in% in t!e course o" t!e clas! o" ideas in t!e pu#lic "oru&. !e sa&e exposure,!o'ever, is not as neutral and "ault-"ree '!en it is precipitated #( t!e %overn&ent actin% as a catal(tic a%ent to !asten t!eac!ieve&ent o" its o'n ends, in t!is case, t!e disclosure o" t!e /trut!/ re%ardin% t!e alle%ed %ra"t and corruption durin% t!e previousre%i&e.

In t!e context o" t!e EO, t!e Executive can investi%ate 'it!in t!e li&its o" its le%al para&eters and can li$e'ise pu#lici5e t!e resultso" its investi%ations to t!e "ull li&it o" allo'a#le transparenc(. 2ut in so doin%, it cannot act as catal(st #( la#ellin% t!e action o" t!eCo&&ission it !as created as o""iciall(-sanctioned and aut!oritative trut!-tellin% #e"ore t!e o""iciall(-desi%nated #odies t!eO&#uds&an and t!e courts !ave spo$en. !ile t!e e&er%ence o" trut! is a #asic and necessar( co&ponent o" t!e =ustices(ste&, t!e trut!-see$in% and trut!-"indin% processes cannot #e speeded up t!rou%! steps t!at s!ortcut and #(pass processesesta#lis!ed #( t!e Constitution and t!e la's. 6s !ereto"ore &entioned, t!e international experiences t!at %ave rise to t!e title rut!Co&&ission 'ere transitional situations '!ere, "or peculiar reasons 3suc! as t!e te&porar( a#sence o" an esta#lis!ed =udicials(ste& or t!e need to speed up t!e transition to de&ocratic rule4, t!e use o" ad !oc co&&issions 'ere called "or. In t!e P!ilippinesettin%, t!e closest si&ilar situation 'ould #e t!e i&&ediate a"ter&at! o" t!e 1@8 EDS6 Revolution as t!e countr( stru%%led in t!e

transition "ro& aut!oritarian &artial la' re%i&e into a "ull-"led%ed de&ocrac(. o #e sure, the shortcut to the emergence of truth,fashioned under the terms of E !, finds no justification after the !"#$ Constitution and its rights, freedoms andguarantees have been fully put in place.

A.+.). !e E""ects on t!e Judicial S(ste&

o "ull( appreciate t!e potential pre=udicial e""ects o" trut!-tellin% on t!e =udicial s(ste&, t!e e""ects o" &edia exposure "ro& t!epoint o" vie' o" '!at transpires and t!e circu&stances present under trut!-tellin% and under t!e present =ustice s(ste& deserveexa&ination.

nder t!e present =ustice s(ste&, t!e &edia &a( "ull( report, as t!e( do report, all t!e details o" a reported cri&e and &a( even %ivet!e suspects detailed "ocus. !ese reports, !o'ever, are not #randed as t!e /trut!/ #ut as &atters t!at 'ill soon #e #rou%!t to t!eappropriate pu#lic aut!orities "or proper investi%ation and prosecution, i" 'arranted. In t!e courts, cases are !andled on t!e #asis o"t!e rules o" evidence and 'it! due respect "or t!e constitutional ri%!ts o" t!e accused, and are reported #ased on actualdevelop&ents, su#=ect onl( to =udicial re<uire&ents to ensure orderl( proceedin%s and t!e o#servance o" t!e ri%!ts o" t!e accused.

Onl( a"ter t!e courts !ave "inall( spo$en s!all t!ere #e an( conclusive narrative report o" '!at actuall( transpired and !o' accusedindividuals &a( !ave participated in co&&ittin% t!e o""ense c!ar%ed. 6t t!is point, an( pu#lic report and anal(sis o" t!e "indin%s canno lon%er adversel( a""ect t!e constitutional ri%!ts o" t!e accused as t!e( !ad #een %iven all t!e opportunities to tell t!eir side incourt under t!e protective %uarantees o" t!e Constitution.

In contrast, t!e circu&stances t!at underlie Co&&ission reports are di""erent. !e /trut!/ t!at t!e Co&&ission s!all pu#lici5e s!all#e #ased on /"acts/ t!at !ave not #een tested and ad&itted accordin% to t!e rules o" evidenceA #( its o'n express rules, t!etec!nical rules o" evidence do not appl( to t!e Co&&ission. !e reported "acts &a( !ave also #een secured under circu&stancesviolative o" t!e ri%!ts o" t!e persons investi%ated under t!e %uarantees o" t!e Constitution. !us, '!at t!e Co&&ission reports &i%!tnot at all pass t!e tests o" %uilt t!at appl( under t!e present =ustice s(ste&, (et t!e( 'ill #e reported 'it! t!e "ull support o" t!e%overn&ent as t!e /trut!/ to t!e pu#lic. 6s "ull( discussed #elo', t!ese circu&stances all 'or$ to t!e active pre=udice o" t!e









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investi%ated persons '!ose reputations, at t!e ver( least, are #lac$ened once t!e( are reported #( t!e Co&&ission as participantsin %ra"t and corruption, even i" t!e courts su#se<uentl( "ind t!e& innocent o" t!ese c!ar%es.

%.. rut!-tellin%> an unreasona#le &eans to a reasona#le o#=ective.

7ie'ed "ro& t!e a#ove perspectives, '!at #eco&es plainl( evident is an EO t!at, as a &eans o" "i%!tin% %ra"t and corruption, 'ille""ectivel( and pre=udiciall( a""ect t!e parties inter-actin% 'it! t!e rut! Co&&ission. !e EO 'ill erode t!e aut!orit( and even t!e

inte%rit( o" t!e O&#uds&an and t!e courts in actin% on &atters #rou%!t #e"ore t!e& under t!e ter&s o" t!e ConstitutionA itspre&ature and /trut!"ul/ report o" %uilt 'ill condition t!e pu#licBs &ind to re=ect an( "indin% ot!er t!an t!ose o" t!e Co&&ission.

nder t!is environ&ent, t!e "indin%s or results o" t!e second "oru& descri#ed a#ove over'!el& t!e processes and '!atever &a(#e t!e "indin%s or results o" t!e "irst "oru&. In ot!er 'ords, t!e "indin%s or results o" t!e second "oru& o#tained 'it!out an(assurance o" t!e o#servance o" constitutional %uarantees 'ould not onl( create !ei%!tened expectations and exert un'antedpressure, #ut even induce c!an%ed perceptions and #ias in t!e processes o" t!e "irst "oru& in t!e &anner analo%ous to '!at JusticeCardo5o descri#ed a#ove. !e "irst casualties, o" course, are t!e investi%ated persons and t!eir #asic ri%!ts, as "ull( explainedelse'!ere in t!is Opinion.

!ile EO 1 &a(, t!ere"ore, serve a lauda#le anti-%ra"t and corruption purpose and &a( !ave #een launc!ed #( t!e President in%ood "ait! and 'it! all sincerit(, its trut!-tellin% "unction, underta$en in t!e &anner outlined in t!e EO and its i&ple&entin% rules, isnot a &eans t!at t!is Court can !old as reasona#le and valid, '!en vie'ed "ro& t!e pris& o" due process. ro& t!is vanta%e point,t!e Co&&ission is not onl( a &isla#elled #od( #ut one '!ose potential outputs &ust as 'ell #e discarded "or #ein% unaccepta#leunder t!e nor&s o" t!e Constitution.

2. DISORION O E?ISIN0 LE06L R6;EORM

!e EO and its trut!-tellin% "unction &ust also #e struc$ do'n as t!e( distort t!e constitutional and statutor( plan o" t!e cri&inal =ustice s(ste& 'it!out t!e aut!orit( o" la' and 'it! an unconstitutional i&pact on t!e s(ste&.

2.1. !e Existin% Le%al ra&e'or$

!e Constitution !as %iven t!e countr( a 'ell-laid out and #alanced division o" po'ers, distri#uted a&on% t!e le%islative, executiveand =udicial #ranc!es, 'it! speciall( esta#lis!ed o""ices %eared to acco&plis! speci"ic o#=ectives to stren%t!en t!e '!oleconstitutional structure.

!e Le%islature is provided, in relation 'it! t!e dispensation o" =ustice, t!e aut!orit( to create courts 'it! de"ined =urisdictions #elo't!e level o" t!e Supre&e CourtA8 to de"ine t!e re<uired <uali"ications "or =ud%esA81 to de"ine '!at acts are cri&inal and '!atpenalties t!e( s!all carr(A8) and to provide t!e #ud%ets "or t!e courts.8*

!e Executive #ranc! is tas$ed 'it! t!e en"orce&ent o" t!e la's t!at t!e Le%islature s!all pass. In t!e dispensation o" =ustice, t!eExecutive !as t!e prero%ative o" appointin% =ustices and =ud%es,8+ and t!e aut!orit( to investi%ate and prosecute cri&es t!rou%! aDepart&ent o" Justice constituted in accordance t!e 6d&inistrative Code.8 Speci"icall( provided and esta#lis!ed #( t!eConstitution, "or a tas$ t!at 'ould ot!er'ise "all under t!e ExecutiveBs investi%ator( and prosecutor( aut!orit(, is an independentO&#uds&an "or t!e purpose o" actin% on, investi%atin% and prosecutin% alle%edl( cri&inal acts or o&issions o" pu#lic o""icers ande&plo(ees in t!e exercise o" t!eir "unctions. !ile t!e O&#uds&anBs =urisdiction is not exclusive, it is pri&ar(A it ta$es precedenceand overrides an( investi%ator( and prosecutor( action #( t!e Depart&ent o" Justice.88

!e Judiciar(, on t!e ot!er !and, is %iven t!e tas$ o" standin% in =ud%&ent over t!e cri&inal cases #rou%!t #e"ore it, eit!er at t!e "irstinstance t!rou%! t!e &unicipal and t!e re%ional trial courts, or on appeal or certiorari, t!rou%! t!e appellate courts and ulti&atel( tot!e Supre&e Court.89 6n exception to t!ese %eneralities is t!e Sandi%an#a(an, a special statutoril(-created court 'it! t!e exclusive

=urisdiction over cri&inal acts co&&itted #( pu#lic o""icers and e&plo(ees in t!e exercise o" t!eir "unctions.8@ nderl(in% all t!ese ist!e Supre&e CourtBs aut!orit( to pro&ul%ate t!e rules o" procedure applica#le to courts and t!eir proceedin%s,8 to appoint allo""icials and e&plo(ees o" t!e Judiciar( ot!er t!an =ud%es,9 and to exercise supervision over all courts and =udiciar( e&plo(ees.91

In t!e usual course, an act alle%edl( violative o" our cri&inal la's &a( #e #rou%!t to t!e attention o" t!e police aut!orities "orunilateral "act-"indin% investi%ation. I" a #asis "or a co&plaint exists, t!en t!e &atter is #rou%!t #e"ore t!e prosecutorBs o""ice "or"or&al investi%ation, t!rou%! an in<uest or a preli&inar( investi%ation, to deter&ine i" pro#a#le cause exists to =usti"( t!e "ilin% o" a"or&al co&plaint or in"or&ation #e"ore t!e courts. 6side "ro& t!ose initiated at t!e instance o" t!e a%%rieved private parties, t!e "act-"indin% investi%ation &a( #e &ade at t!e instance o" t!e President or o" senior o""icials o" t!e Executive #ranc!, to #e underta$en #(police aut!orities, #( t!e investi%ator( a%encies o" t!e Depart&ent o" Justice, or #( speciall( constituted or dele%ated o""icials ore&plo(ees o" t!e Executive #ranc!A t!e preli&inar( investi%ation "or t!e deter&ination o" pro#a#le cause is a tas$ statutoril( vestedin t!e prosecutorBs o""ice.9) p to t!is point, t!ese activities lie 'it!in t!e Executive #ranc! o" %overn&ent and &a( #e calledits e+trajudicial participation in the justice system.




































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2( speci"ic aut!orit( o" t!e Constitution and t!e la', a deviation "ro& t!e a#ove %eneral process occurs in t!e case o" acts alle%edl(co&&itted #( pu#lic o""icers and e&plo(ees in t!e per"or&ance o" t!eir duties '!ere, as &entioned a#ove, t!e O&#uds&an !aspri&ar( =urisdiction. !ile t!e Executive #ranc! itsel" &a( underta$e a unilateral "act-"indin%, and t!e prosecutorBs o""ice &a(conduct preli&inar( investi%ation "or purposes o" "ilin% a co&plaint or in"or&ation 'it! t!e courts, t!e O&#uds&anBs pri&ar(

=urisdiction %ives t!is o""ice precedence and do&inance once it decides to ta$e over a case.9*

!et!er a co&plaint or in"or&ation e&anates "ro& t!e prosecutorBs o""ice or "ro& t!e O&#uds&an, =urisdiction to !ear and tr( t!ecase #elon%s to t!e courts, &andated to deter&ine under t!e "or&al rules o" evidence o" t!e Rules o" Court and 'it! due

o#servance o" t!e constitutional ri%!ts o" t!e accused t!e %uilt or innocence o" t!e accused. 6 case involvin% cri&inal acts oro&issions o" pu#lic o""icers and e&plo(ees in t!e per"or&ance o" duties "alls at t!e "irst instance 'it!in t!e exclusive =urisdiction o"t!e Sandi%an#a(an,9+ su#=ect to !i%!er recourse to t!e Supre&e Court. !is is t!e strictly judicial aspect of the criminal justicesystem.

nder t!e a#ove processes, our la's !ave dele%ated t!e !andlin% o" cri&inal cases to t!e =ustice s(ste& and t!ere t!e !andlin%s!ould solel( lie, supported #( all t!e "orces t!e la' can &uster, until t!e disputed &atter is "ull( resolved. !e proceedin%s '!et!er #e"ore t!e ProsecutorBs O""ice, t!e O&#uds&an, or #e"ore t!e courts are open to t!e pu#lic and are t!ere#( &adetransparentA "reedo& o" in"or&ation9 and o" t!e press98 %uarantee &edia participation, consistent 'it! t!e =ustice s(ste&Bs orderl(proceedin%s and t!e protection o" t!e ri%!ts o" parties.

!e extra=udicial intervention o" t!e Co&&ission, as provided in t!e EO, even "or t!e avo'ed purpose o" /assistin%/ t!eO&#uds&an, directl( disrupts t!e esta#lis!ed order, as t!e Constitution and t!e la' do not envision a situation '!ere "act-"indin%reco&&endations, +re+-; +bee- + "re," 'ould #e su#&itted to t!e O&#uds&an #( an entit( 'it!in t!e Executive #ranc!.!is arran%e&ent is si&pl( not 'it!in t!e dispensation o" =ustice sc!e&e, as t!e deter&ination o" '!et!er pro#a#le cause exists

cannot #e de"eated, rendered suspect, or ot!er'ise eroded #( an( prior process '!ose results are represented to #e t!e /trut!/ o"t!e alle%ed cri&inal acts. !e O&#uds&an &a( #e #ound #( t!e "indin%s o" a court, particularl( t!ose o" t!is Court, #ut not o" an(ot!er #od(, &ost especiall( a #od( outside t!e re%ular cri&inal =ustice s(ste&. Neit!er can t!e strictl( =udicial aspect o" t!e =ustices(ste& #e saddled 'it! t!is t(pe o" "act-"indin%, as t!e deter&ination o" t!e %uilt or innocence o" an accused lies strictl( and solel('it! t!e courts. Nor can t!e EO cloa$ its intent o" undercuttin% t!e aut!orit( o" t!e desi%nated aut!orities to rule on t!e &erits o" t!ealle%ed %ra"t and corruption t!rou%! a state&ent t!at its "indin%s are reco&&endator(A as !as #een discussed a#ove, t!is expressprovision is ne%ated in actual application #( t!e title rut! Co&&ission and its trut!-tellin% "unction.

6 necessar( conse<uence o" t!e deviation "ro& t!e esta#lis!ed constitutional and statutor( plan is t!e extension o" t!e situs o" t!e =ustice s(ste& "ro& its constitutionall( and statutoril( desi%nated locations 3e<uivalent to t!e a#ove-descri#ed "irst "oru&4, since t!eCo&&ission 'ill investi%ate &atters t!at are #ound to %o to t!e =ustice s(ste&. In ot!er 'ords, t!e Co&&issionBs activities, includin%its trut!-tellin% "unction and t!e second "oru& t!is "unction creates, #eco&e t!e prelude to t!e entr( o" cri&inal &atters into t!eO&#uds&an and into t!e strictl( =udicial aspect o" t!e s(ste&.

In practical ter&s, t!is extension under&ines t!e esta#lis!ed order in t!e =udicial s(ste& #( directl( #rin%in% in considerations t!atare extraneous to t!e ad=udication o" cri&inal cases, and #( co-&in%lin% and con"usin% t!ese 'it! t!e standards o" t!e cri&inal

=ustice s(ste&. !e result, unavoida#l(, is a <ualitative c!an%e in t!e cri&inal =ustice s(ste& t!at is #ased, not on a le%islative polic(c!an%e, #ut on an executive "iat.

2ecause o" trut!-tellin% and its conse<uence o" activel( #rin%in% in pu#lic opinion as a consideration, standards and usa%es ot!ert!an t!ose strictl( laid do'n or allo'ed #( t!e Constitution, #( t!e la's and #( t!e Rules o" Court 'ill pla( a part in t!e cri&inal

=ustice s(ste&. or exa&ple, pu#lic co&&ents on t!e &erits o" cases t!at are still su# =udice &a( #eco&e ra&pant as co&&ents ona trut! co&&issionBs "indin%s, not on t!e cases pendin% #e"ore t!e courts. !e co&&issionBs /trut!"ul/ "indin%s, &ade 'it!outrespect "or t!e rules on evidence and t!e ri%!ts o" t!e accused, 'ould #eco&e t!e standards o" pu#lic perception o" and reaction tocases, not t!e evidence as "ound #( t!e courts #ased on t!e rules o" evidence.

Once t!e door is opened to t!e rut! Co&&ission approac! and pu#lic opinion enters as a consideration in t!e =udicial !andlin% o"cri&inal cases, t!en t!e rules o" =ud%in% 'ould !ave e""ectivel( c!an%edA reliance on t!e la', t!e rules and =urisprudence 'ould!ave #een 'ea$ened to t!e extent t!at =ud%es are on t!e loo$out, not onl( "or '!at t!e la' and t!e rules sa(, #ut also "or '!at t!epu#lic "eels a#out t!e case. In t!is eventualit(, even a nois( &inorit( can c!an%e t!e course o" a case si&pl( #ecause o" t!eir noiseand t!e &edia attention t!e( %et. 3Suc! tactics !ave #een atte&pted in t!e i&&ediate past '!ere pressure !as #een #rou%!t to

#ear on t!is Court t!rou%! street de&onstrations #orderin% on anarc!(, t!e &ars!allin% o" opinions locall( and internationall(, and!i%!l( partisan &edia co&&ents.4 !e pri&ac( o" pu#lic opinion &a(, 'it!out dou#t, appeal to so&e #ut t!is is si&pl( not t!e 'a( o"a Judiciar( constitutionall(-desi%ned to "ollo' t!e rule o" la'.

6not!er conse<uent adverse i&pact could #e erosion o" '!at t!e Constitution !as ver( care"ull( "as!ioned to #e a s(ste& '!ere t!einterpretation o" t!e la' and t!e dispensation o" =ustice are to #e ad&inistered apoliticall( #( t!e Judiciar(. Politics al'a(s enters t!epicture once pu#lic opinion #e%ins to #e a si%ni"icant consideration. 6t t!is point, even politicians ever attuned to t!e pu#lic pulse &a( re%ister t!eir o'n state&ents in t!e pu#lic arena on t!e &erits o" t!e cases even '!ile &atters are su# =udice. !e e""ects could#e 'orse '!ere t!e case under consideration carries its o'n political di&ensions, as in t!e present case '!ere t!e tar%et involvest!e &isdeeds o" t!e previous ad&inistration.












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!et!er t!e Judiciar( s!all involve, or #e involved, in politics, or '!et!er it s!ould consider, or #e a""ected #(, politicalconsiderations in ad=udication, !as #een "ir&l( decided #( t!e Constitution and our la's in "avour o" insulation t!rou%! provisions ont!e independence o" t!e Judiciar( t!e unelected #ranc! o" %overn&ent '!ose standard o" action is t!e rule o" la' rat!er t!an t!epu#lic pulse. !is polic( !as not #een proven to #e unsound. Even i" it is unsound, an( c!an%e 'ill !ave to #e e""ected t!rou%!le%iti&ate c!annels t!rou%! t!e soverei%nt( t!at can c!an%e t!e Constitution, to t!e extent t!at t!e Judiciar(Bs and t!eO&#uds&anBs independence and t!e exercise o" =udicial discretion are concerned, and t!rou%! t!e Con%ress o" t!e P!ilippines,'it! respect to ot!er innovations t!at do not re<uire constitutional c!an%es.

o #e sure, t!e President o" t!e P!ilippines, t!rou%! an executive or ad&inistrative order and 'it!out aut!orit( o" la', cannotintroduce c!an%es or innovations into t!e =ustice s(ste& and si%ni"icantl( 'ater do'n t!e aut!oritative po'er o" t!e courts and o"dul( desi%nated constitutional #odies in dispensin% =ustice. !e no#ilit( o" t!e PresidentBs intentions is not enou%! to render !is actle%al. 6s !as #een said o"ten enou%!, ours is a %overn&ent o" la's, not o" &en.

C. LI;IS O :E E?ERCISE O E?ECI7E POER IN :E JSICE SSE;

!ile t!e Executive participates in t!e dispensation o" =ustice under our constitutional and statutor( s(ste& t!rou%! its investi%ator(and prosecutor( ar&s and !as ever( aut!orit( in la' to ensure t!at t!e la' is en"orced and t!at violators are prosecuted, even t!esepo'ers !ave li&its.

!e independence o" t!e O&#uds&an and its "reedo& "ro& inter"erence "ro& all ot!er depart&ents o" %overn&ent in t!eper"or&ance o" its "unctions is a #arrier t!at cannot #e #reac!ed, directl( or indirectl(, except onl( as t!e Constitution and t!e la's&a( allo'. No suc! exception !as #een allo'ed or %iven to t!e President ot!er t!an t!rou%! t!e prosecution t!e Depart&ent o"Justice &a( underta$e99 '!en t!e O&#uds&an !as not asserted its pri&ar( =urisdiction. !e concurrent =urisdiction %iven to t!e

Depart&ent o" Justice to prosecute cri&inal cases, incidentall(, is a %rant speci"ic to t!at o""ice,9@ not to an( ot!er o""ice t!at t!eExecutive &a( create t!rou%! an executive order.

!e Executive can, 'it!out dou#t, reco&&end t!at speci"ic violators #e prosecuted and t!e #asis "or t!is reco&&endation need noteven co&e "ro& t!e Depart&ent o" JusticeA t!e #asis &a( #e t!e "indin%s o" t!e O""ice o" t!e President itsel" independentl( o" itsDepart&ent o" Justice. Nota#l(, t!e ot!er #ranc!es o" %overn&ent &a( also, and do in "act, &a$e reco&&endations to t!eO&#uds&an in t!e 'a( t!at Con%ress, in t!e course o" its "act-"indin% "or le%islative purposes, uneart!s ano&alies t!at it reports tot!e O&#uds&an. Even t!e Supre&e Court reco&&ends t!at Judiciar( o""icials and e&plo(ees "ound ad&inistrativel( lia#le #e alsocri&inall( prosecuted.

!e Executive can also desi%nate o""icials and e&plo(ees o" t!e Executive Depart&ent 3or even appoint presidential assistants orconsultants49 to underta$e "act-"indin% investi%ation "or its use pursuant to t!e vast po'ers and responsi#ilities o" t!e Presidenc(,#ut it cannot create a separate #od(, in t!e 'a( and under t!e ter&s it created t!e rut! Co&&ission, 'it!out o""endin% t!eConstitution.

!e "ollo'in% indicators, !o'ever, s!o' t!at t!e President 'as not si&pl( appointin% presidential assistants or assistants '!en !econstituted t!e rut! Co&&ission as an investi%atin% or "act-"indin% #od(.

irst, t!e President /created/ t!e rut! Co&&issionA t!e act o" creation %oes #e(ond t!e &ere na&in%, desi%nation or appoint&ento" assistants and consultants. !ere is no need to /create/ i.e., to constitute or esta#lis! so&et!in% out o" not!in%, or to esta#lis!"or t!e "irst ti&e@ i" onl( t!e desi%nation or appoint&ent o" a presidential assistant or consultant is intended. o /create/ an o""ice,too, as t!e petitioners ri%!t"ull( clai&, is a "unction o" t!e Le%islature under t!e constitutional division o" po'ers.@1 Note in t!isre%ard, and as &ore "ull( discussed #elo', t!at '!at t!e Revised 6d&inistrative Code, t!rou%! its Section *1, allo's t!e Presidentis to /reor%ani5e,/ not to create a pu#lic o""ice 'it!in t!e Executive depart&ent.

Second, t!e rut! Co&&ission, as created #( t!e EO, appears to #e a separate #od(@) t!at is clearl( #e(ond #ein% &erel( a %roupo" people tas$ed #( t!e President to acco&plis! a speci"ic tas$ 'it!in !is i&&ediate o""iceA its &e&#ers do not operate in t!e 'a(t!at presidential assistants and consultants usuall( do.

It is not insi%ni"icant t!at t!e Co&&ission !as its o'n Rules o" Procedure t!at it issued on its o'n on t!e aut!orit( o" t!e EO. Note

t!at t!ese are not t!e rules o" t!e O""ice o" t!e President #ut o" anot!er #od(, alt!ou%! one constituted #( t!e President.

!e Co&&ission !as its o'n co&plete set o" o""icers, #e%innin% "ro& t!e C!air and &e&#ers o" t!e Co&&issionA it !as its o'nconsultants, experts, and e&plo(ees, alt!ou%! t!e latter are &erel( dra'n "ro& t!e Executive depart&entA@* and it even !asprovisions "or its o'n #ud%et, alt!ou%! t!ese "unds ride on and are to #e dra'n "ro& t!e #ud%et o" t!e O""ice o" t!e President.

!ird, t!e Co&&ission !as its o'n identit(, separate and distinct "ro& t!e O""ice o" t!e President, alt!ou%! it still "alls 'it!in t!estructural "ra&e'or$ o" t!at o""ice. !e Co&&ission underta$es its o'n /independent/ investi%ation@+ t!at, accordin% to t!e Solicitor0eneral, 'ill not #e controlled #( t!e O""ice o" t!e PresidentA@ and it co&&unicates on its o'n, under its o'n na&e, to ot!er#ranc!es o" %overn&ent outside o" t!e Executive #ranc!.




























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Lastl(, t!e Co&&ission as an o""ice !as #een vested 'it! "unctions t!at not even t!e O""ice o" t!e President possesses #( aut!orit(o" la', and '!ic! t!e President, conse<uentl(, cannot dele%ate. Speci"icall(, t!e Co&&ission !as its trut!-tellin% "unction, #ecauseit !as #een %iven t!e tas$ to disclose t!e /trut!/ #( t!e President, t!us %ivin% its report t!e i&pri&atur o" trut! 'ell a!ead o" an(deter&ination in t!is re%ard #( t!e constitutional #odies aut!ori5ed to deter&ine t!e existence o" pro#a#le cause and t!e %uilt orculpa#ilit( o" individuals.

I" t!e President cannot %ive t!e o""icial la#el o" trut! independentl( o" t!e courts in a "act-"indin% in a cri&inal case, eit!er #( !i&sel"or t!rou%! t!e Depart&ent o" Justice, it onl( "ollo's t!at !e cannot dele%ate t!is tas$ to an( assistant, consultant, or su#ordinate,

even %rantin% t!at !e can order a "act-"indin% investi%ation #ased on t!e po'ers o" !is o""ice. !is trut!-tellin% "unction di""erentiatest!e rut! Co&&ission "ro& ot!er co&&issions constituted in t!e past suc! as t!e 6%rava, eliciano and ;elo Co&&issionsA t!epronounce&ents o" t!e latter #odies did not carr( t!e i&pri&atur o" trut!, and 'ere &ere preli&inar( "indin%s "or t!e PresidentBsconsideration. 6n exact recent case to drive !o&e t!is point is t!e C!inese !osta%e incident '!ere t!e O""ice o" t!e President&odi"ied t!e Report su#&itted #( a dul(-constituted %roup !eaded #( Secretar( Leila de Li&a.@8 6pparentl(, t!e "indin%s o" t!e DeLi&a co&&ittee did not carr( t!e i&pri&atur o" trut! and 'ere &erel( reco&&endator(A ot!er'ise t!e O""ice o" t!e President 'ouldnot !ave &odi"ied its "indin%s and reco&&endations.

Still on t!e point o" t!e PresidentBs aut!orit( to dele%ate tas$s to a #od( !e !as constituted, in no case can t!e President order a"act-"indin% '!ose results 'ill operate to undercut t!e aut!orit( and inte%rit( o" t!e O&#uds&an in a reported violation o" t!ecri&inal la's #( a pu#lic servant. !e PresidentBs aut!orit( outside o" t!e instance '!en t!e Depart&ent o" Justice acts in de"aulto" t!e O&#uds&an is to #rin% to t!e attention o", or &a$e reco&&endations to, t!e O&#uds&an violations o" t!e la' t!at t!eExecutive #ranc! uncovers in t!e course o" la' en"orce&ent. !is aut!orit( s!ould #e no di""erent "ro& t!at '!ic! Con%ress and t!eSupre&e Court exercise on t!e sa&e point.

0iven all t!e possi#ilities open to t!e President "or a le%iti&ate "act-"indin% intervention na&el(, t!rou%! "act-"indin% #( t!eDepart&ent o" Justice or #( t!e O""ice o" t!e President itsel", utili5in% its o'n o""icials, e&plo(ees, consultants or assistants t!ePresident is not 'antin% in &easures 'it!in t!e para&eters allo'ed #( la' to "i%!t %ra"t and corruption and to address speci"icinstances t!at co&e to !is attention. o #e sure, t!e P!ilippine situation ri%!t no' is "ar "ro& t!e situations in Sout! 6"rica, R'anda,and Sout! 6&erica,@9 '!ere <uic$ transitional =ustice@@ !ad to #e ac!ieved #ecause t!ese countries 'ere co&in% "ro& a period o"non-de&ocratic rule and t!eir desired =ustice s(ste&s 'ere not (et "ull( in place. !is realit( re&oves an( =usti"ication "or t!ePresident to resort to extrale%al 3or even ille%al4 &easures and to institutions and &ec!anis&s outside o" t!ose alread( in place, inproceedin% a%ainst %ra"ters in t!e previous ad&inistration.

I" t!e President and Con%ress are dissatis"ied 'it! t!e O&#uds&anBs per"or&ance o" dut(, t!e constitutionall(-provided re&ed( is toi&peac! t!e O&#uds&an #ased on t!e constitutionall(-provided %rounds "or re&oval. !e re&ed( is not t!rou%! t!e creation o" aparallel o""ice t!at eit!er duplicates or renders ine""ective t!e O&#uds&anBs actions. 2( t!e latter action, t!e President alread(situates !i&sel" and t!e Executive Depart&ent into t!e =ustice s(ste& in a &anner t!at t!e Constitution and t!e la' do not allo'.

D. :E PRESIDEN :6S NO 6:ORI EI:ER NDER :E CONSIION OR NDER :E L6S O CRE6E :ER: CO;;ISSION.

nder t!e 1@9 Constitution, t!e aut!orit( to create o""ices is lod%ed exclusivel( in Con%ress. !is is a necessar( i&plication@ o" its/plenar( le%islative po'er./ !us, except as ot!er'ise provided #( t!e Constitution or statutor( %rant, no pu#lic o""ice can #ecreated except #( Con%ressA an( unaut!ori5ed action in t!is re%ard violates t!e doctrine o" separation o" po'ers.

In essence, accordin% to at!er Joa<uin 2ernas, /separation o" po'ers &eans t!at le%islation #elon%s to Con%ress, execution to t!eexecutive, settle&ent o" le%al controversies to t!e =udiciar(./1 !is &eans t!at t!e President cannot, under t!e present Constitutionand in t!e %uise o" /executin% t!e la's,/ per"or& an act t!at 'ould i&pin%e on Con%ressB exclusive po'er to create la's, includin%t!e po'er to create a pu#lic o""ice.

In t!e present case, t!e exclusive aut!orit( o" Con%ress in creatin% a pu#lic o""ice is not <uestioned. !e issue raised re%ardin% t!ePresidentBs po'er to create t!e rut! Co&&ission #oils do'n to '!et!er t!e Constitution allo's t!e creation o" t!e rut!Co&&ission #( t!e President or #( an act o" Con%ress.

3.< !e Section *1 6r%u&ent.

EO 1, #( its express ter&s, ) is pre&ised on /2oo$ III, C!apter 1, Section *1 o" Executive Order No. )), ot!er'ise $no'n as t!eRevised 6d&inistrative Code o" t!e P!ilippines, '!ic! %ives t!e President t!e

continuin% aut!orit( to reor%ani5e t!e O""ice o" t!e President. !e Solicitor 0eneral, o" course, did not stead"astl( !old on to t!isvie'A in t!e course o" t!e oral ar%u&ents and in !is ;e&orandu&, !e invo$ed ot!er #ases "or t!e PresidentBs aut!orit( to issue EO1. In t!e process, !e li$e'ise &ade various clai&s, not all o" t!e& consistent 'it! one anot!er, on t!e nature o" t!e rut!Co&&ission t!at EO 1 created.























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Section *1 s!o's t!at it is a ver( potent presidential po'er, as it e&po'ers !i& to 314 to re-or%ani5e !is o'n internal o""iceA 3)4trans"er an( "unction or o""ice "ro& t!e O""ice o" t!e President to t!e various executive depart&entsA and 3*4 trans"er an( "unction oro""ice "ro& t!e various executive depart&ents to t!e O""ice o" t!e President.

o reor%ani5e presupposes t!at an office is or offices are already e+isting and t!at 314 a reduction is e""ected, eit!er o" sta"" or o" its"unctions, "or trans"er to anot!er or "or a#olition #ecause o" redundanc(A 3)4 o""ices are &er%ed resultin% in t!e retention o" one ast!e do&inant o""iceA 3*4 t'o o""ices are a#olis!ed resultin% in t!e e&er%ence o" a ne' o""ice carr(in% t!e attri#utes o" itspredecessors as 'ell as t!eir responsi#ilitiesA or 3+4 a ne' o""ice is created #( dividin% t!e "unctions and sta"" o" an existin% o""ice.

2u$lod n% Ma'anin% EII2 v. :on. Executive Secretar( addresses t!is point '!en it said>

KRGeor%ani5ation involves t!e reduction o" personnel, consolidation o" o""ices, or a#olition t!ereo" #( reason o" econo&( orredundanc( o" "unctions. It ta$es place '!en t!ere is an alteration o" t!e existin% structure o" %overn&ent o""ices or units t!erein,includin% t!e lines o" control, aut!orit( and responsi#ilit( #et'een t!e&.*

!ese traditional concepts o" reor%ani5ation do not appear to !ave ta$en place in t!e esta#lis!&ent o" t!e rut! Co&&ission. 6s!ereto"ore &entioned, #( its plain ter&s, it 'as /created/ and did not si&pl( e&er%e "ro& t!e "unctions or t!e personalit( o" anot!ero""ice, '!et!er 'it!in or outside t!e O""ice o" t!e President. !us, it is a co&pletel( ne' #od( t!at t!e President constituted, not a#od( t!at appropriated t!e po'ers o", or derived its po'ers "ro&, t!e investi%ator( and prosecutor( po'ers o" t!e Depart&ent o"Justice or an( ot!er investi%ator( #od( 'it!in t!e Executive #ranc!.

ro& t!e Solicitor 0eneralBs ;e&orandu&, it appears t!at t!e inspiration "or t!e EO ca&e "ro& t!e use and experiences o" trut!co&&issions in ot!er countries t!at 'ere co&in% "ro& /deter&inate periods o" a#usive rule or con"lict/ "or purposes o" &a$in%/reco&&endations "or Kt!eG redress and "uture prevention/+ o" si&ilar a#usive rule or con"lict. It is a #od( to esta#lis! t!e /trut! o"

'!at a#uses actuall( !appened in t!e pastA/ t!e Solicitor 0eneral even su%%ests t!at t!e /doctrine o" separation o" po'ers and t!eextent o" t!e po'ers o" co-e<ual #ranc!es o" %overn&ent s!ould not #e so construed as to restrain t!e Executive "ro& uncoverin%t!e trut! a#out #etra(als o" pu#lic trust, "ro& addressin% t!eir ena#lin% conditions, and "ro& preventin% t!eir recurrence./ 2( t!eseperorations, t!e Solicitor 0eneral un'ittin%l( stren%t!ens t!e vie' t!at no reor%ani5ation ever too$ place '!en t!e rut!Co&&ission 'as createdA '!at t!e President /created/ 'as a ne' o""ice t!at does not trace its roots to an( existin% o""ice or"unction "ro& t!e O""ice o" t!e President or "ro& t!e executive depart&ents and a%encies !e controls.

!us, t!e President cannot le%all( invo$e Section *1 to create t!e rut! Co&&ission. !e re<uire&ents "or t!e application o" t!isSection are si&pl( not presentA an( insistence on t!e use o" t!is Section can onl( lead to t!e invalidit( o" EO 1.

D.). !e PD 1+18 and Residual Po'ers 6r%u&ent

Independentl( o" t!e EOBs express le%al #asis, t!e Solicitor-0eneral introduced a ne' #asis o" aut!orit(, t!eori5in% t!at /t!e po'ero" t!e President to reor%ani5e t!e executive #ranc!/ is =usti"ia#le under Presidential Decree 3PD4 No. 1+18, as a&ended #( PD No.199), #ased on t!e PresidentBs residual po'ers under Section ), itle I, 2oo$ III o" E.O. No. ))./ :e cites in t!is re%ard t!e case

o" Larin v. Executive Secretar(8 and accordin% to !i&>

x x x !is provision spea$s o" suc! ot!er po'ers vested in t!e President under t!e la'. !at la' t!en '!ic! %ives !i& t!e po'er toreor%ani5e It is Presidential Decree No. 199) '!ic! a&ended Presidential Decree No. 1+18. !ese decrees expressl( %rant t!ePresident o" t!e P!ilippines t!e continuin% aut!orit( to reor%ani5e t!e national %overn&ent, '!ic! includes t!e po'er to %roup,consolidate #ureaus and a%encies, to a#olis! o""ices, to trans"er "unctions, to create and classi"( "unctions, services and activitiesand to standardi5e salaries and &aterials. !e validit( o" t!ese t'o decrees are un<uestiona#le. !e 1@9 Constitution clearl(provides t!at /all la's, decrees, executive orders, procla&ations, letters o" instructions and ot!er executive issuances notinconsistent 'it! t!is Constitution s!all re&ain operative until a&ended, repealed or revo$ed./ So "ar, t!ere is (et no la' a&endin%or repealin% said decrees.9 KE&p!asis suppliedG

n"ortunatel(, even t!e invocation o" t!e transitor( clause o" t!e 1@9 Constitution 3re%ardin% t!e validit( o" la's and decrees notinconsistent 'it! t!e Constitution4 cannot save EO 1, as PD 1+18 is a le%islation t!at !as lon% lost its potenc(.

Conte&porar( !istor( teac!es us t!at PD 1+18 'as passed under co&pletel( di""erent "actual and le%al &ilieus t!at are not present

toda(, t!us renderin% t!is presidential decree an anac!ronis& t!at can no lon%er #e invo$ed.

Prior to t!e EDS6 Revolution o" 1@8 3and t!e 1@9 Constitution4, President ;arcos exercised le%islative po'ers and issued PD1+18, as a&ended #( PD 199), '!ic!, #( its express ter&s, allo'ed t!e President to reor%ani5e andFor create o""ices 'it!in t!eNational 0overn&ent. !is 'as sanctioned in t!e exercise o" t!e PresidentBs &artial la' po'ers and on t!e #asis o" 6rticle ?7II,Section *3)4 o" t!e 19* Constitution.@

pon t!e adoption o" t!e 1@9 Constitution, and t!e re-introduction o" t!e presidential "or& o" %overn&ent, t!e /separation o"le%islative and executive po'ers/ 'as restored. Si&ilarl( reco%ni5ed 'ere t!e li&its on t!e exercise o" t!e care"ull( carved-out anddesi%nated po'ers o" eac! #ranc! o" %overn&ent. !us, Con%ress re%ained t!e exclusive po'er to create pu#lic o""icesA PD 1+18,
























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as a&ended #( PD 1998 a creation o" t!e le%al order under President ;arcos lost its aut!orit( as a =usti"ication "or t!e creationo" an o""ice #( t!e President.

!at PD 1+18, as a&ended #( PD 1998, !as #een overta$en and rendered an o#solete la', is not a ne' position ta$en 'it!in t!isCourt. In !is separate concurrin% opinion in 2anda v. Executive Secretar(,1 Justice 6ntonio . Carpio pointedl( posited t!at t!erulin% in Larin v. Executive Secretar(11 3reiterated in 2u$lod n% Ma'anin% EII2 v. :on. Sec. a&ora1) and ondo ;edical CenterE&plo(ees 6ssociation v. Court o" 6ppeals1*4, '!ic! relied on Section ), C!apter 9, 2oo$ II o" t!e 6d&inistrative Code o" 1@9 inrelation 'it! P.D. 1+18, cannot validate Executive Order No. *9@ assailed in t!at case #ecause /P.D. 1+18, as a&ended, 'it! its

#lendin% o" le%islative and executive po'ers, is a vesti%e o" an autrocratic era, totall( anac!ronistic to our present-da( constitutionalde&ocrac(./ 1+

!us, t!e present and "ir&l( esta#lis!ed le%al realit( is t!at under t!e 1@9 Constitution and t!e Revised 6d&inistrative Code, t!ePresident cannot create a pu#lic o""ice except to t!e extent t!at !e is allo'ed #( Section *1, C!apter 1, 2oo$ III o" t!e Revised

6d&inistrative Code. 6s discussed a#ove, even t!is narro' 'indo' cannot #e used as t!e President did not co&pl( 'it! t!ere<uire&ents o" Section *1.

D.*. !e 6ut!orit( o" t!e President under t!e ait!"ul Execution Clause

6rticle 7II, Section 19 o" t!e 1@9 Constitution directs and aut!ori5es t!e President to "ait!"ull( execute t!e la's and t!e potenc( o"t!is po'er cannot #e underesti&ated. O'in% per!aps to t!e latitude %ranted to t!e President under t!is constitutional provision, t!eSolicitor 0eneral posited t!at t!e PresidentBs po'er to create t!e rut! Co&&ission &a( #e =usti"ied under t!is %eneral %rant o"aut!orit(. In particular, t!e Solicitor 0eneral ar%ues t!at t!e /PresidentBs po'er to conduct investi%ations to aid !i& in ensurin% t!e"ait!"ul execution o" la's in t!is case, "unda&ental la's on pu#lic accounta#ilit( and transparenc( is in!erent in t!e PresidentBs

po'ers as t!e C!ie" Executive./ 1 !e Solicitor 0eneral "urt!er ar%ues> /!at t!e aut!orit( o" t!e President to conductinvesti%ations and to create #odies to execute t!is po'er is not explicitl( &entioned in t!e Constitution or in statutes does not &ean!e is #ere"t o" suc! aut!orit(./18

!at t!e President cannot, in t!e a#sence o" an( statutor( =usti"ication, re"use to execute t!e la's '!en called "or is a principle "ull(reco%ni5ed #( =urisprudence. In In re Nea%le, t!e S Supre&e Court !eld t!at t!e "ait!"ul execution clause is /not li&ited to t!een"orce&ent o" acts o" Con%ress accordin% to t!eir express ter&s./19 6ccordin% to at!er 2ernas, Nea%le /sa' as la' t!at !ad to #e"ait!"ull( executed not =ust "or&al acts o" t!e le%islature #ut an( dut( or o#li%ation in"era#le "ro& t!e Constitution or "ro& statutes./1@

nder !is #road po'ers to execute t!e la's, t!e President can undou#tedl( create ad !oc #odies "or purposes o" investi%atin%reported cri&es. !e President, !o'ever, !as to o#serve t!e li&its i&posed on !i& #( t!e constitutional plan> !e &ust respect t!eseparation o" po'ers and t!e independence o" ot!er #odies '!ic! !ave t!eir o'n constitutional and statutor( &andates, asdiscussed a#ove. Contrar( to '!at J. 6ntonio Eduardo 2. Nac!ura clai&s in !is Dissent, t!e President cannot clai& t!e ri%!t tocreate a pu#lic o""ice in t!e course o" i&ple&entin% t!e la', as t!is po'er lod%ed exclusivel( in Con%ress. 6n investi%atin% #od(,"urt!er&ore, &ust operate 'it!in t!e Executive #ranc!A t!e President cannot create an o""ice outside t!e Executive depart&ent.

!ese le%al realities spa'ned t!e pro#le&s t!at t!e Solicitor 0eneral created "or !i&sel" '!en !e &ade con"lictin% clai&s a#out t!erut! Co&&ission durin% t!e oral ar%u&ents. or accurac(, t!e excerpts "ro& t!e oral ar%u&ents are #est <uoted ver#ati&.1

6ssociate Justice Nac!ura> ;r. Solicitor 0eneral, &ost o" &( <uestions !ave actuall( #een as$ed alread( and t!ere are "e' t!in%st!at I 'ould li$e to #e clari"ied on. ell, "ollo'in% t!e <uestions as$ed #( Justice Carpio, I 'ould li$e a clari"ication "ro& (ou, ade"inite ans'er, is t!e rut! Co&&ission a pu#lic o""ice

Solicitor 0eneral Cadi5> No, our :onor. 6ssociate Justice Nac!ura> 6!, (ou &ean it is not a pu#lic o""ice

Solicitor 0eneral Cadi5> It is not a pu#lic o""ice in t!e concept t!at it !as to #e created #( Con%ress, our :onor. 6ssociate Justice Nac!ura> O!, co&e on, I a%ree 'it! (ou t!at t!e President can create pu#lic o""ices, t!at 'as '!at, a!, one o" t!e<uestions I as$ed Con%ress&an La%&an.

Solicitor 0eneral Cadi5> !an$ (ou, (our :onor.

6ssociate Justice Nac!ura> 2ecause !e 'as insistin% t!at onl( Con%ress could create pu#lic o""ice alt!ou%!, !e said, t!e Presidentcan create pu#lic o""ices #ut onl( in t!e context o" t!e aut!orit( %ranted under t!e 6d&inistrative Code o" 1@9. So, it is a pu#lico""ice

Solicitor 0eneral Cadi5> es, our :onor. 6ssociate Justice Nac!ura> !is is de"inite, cate%orical. ou are certain no' t!at rut! Co&&ission 3interrupted4

Solicitor 0eneral Cadi5> es, our :onor, under t!e O""ice o" t!e President Proper, (es, our :onor. 6ssociate Justice Nac!ura> 6%ain



























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Solicitor 0eneral Cadi5> !at t!is rut! Co&&ission is a pu#lic o""ice, our :onor, created under t!e O""ice o" t!e President. 6ssociate Justice Nac!ura> O$a(, created under t!e O""ice o" t!e President, #ecause it is t!e President '!o created it. 6nd t!ePresident can create o""ices onl( 'it!in t!e executive depart&ent. :e cannot create a pu#lic o""ice outside o" t!e executivedepart&ent, alri%!t.

Solicitor 0eneral Cadi5> es, our :onor. 6ssociate Justice Nac!ura> O$a(. So, t!e Co&&issioners '!o are appointed are '!at, Presidential 6ssistants 6re t!e(Presidential 6ssistants

Solicitor 0eneral Cadi5> !e( are Co&&issioners, our :onor. 6ssociate Justice Nac!ura> !e( are, t!ere"ore, alter-e%os o" t!e President

Solicitor 0eneral Cadi5> No, our :onor. !ere is created a rut! Co&&ission, and Co&&issioners are appointed and it so stated!ere t!at t!e( are independent.

6ssociate Justice Nac!ura> 6!a, o$a(.

Solicitor 0eneral Cadi5> O" t!e O""ice o" t!e President. 6ssociate Justice Nac!ura> 6re (ou sa(in% no' t!at t!e Co&&issioners are not under t!e po'er and control o" t!e President o" t!eP!ilippines

Solicitor 0eneral Cadi5> It is so stated in t!e Executive Order, our :onor. 6ssociate Justice Nac!ura> 6!a, alri%!t. So, t!e rut! Co&&ission is not an o""ice 'it!in t!e executive depart&ent, #ecause it is not

under t!e po'er o" control o" t!e President, t!en, Section 19 o" 6rticle 7II 'ould not appl( to t!e&, is t!at it

Solicitor 0eneral Cadi5> our :onor, t!e President !as delineated !is po'er #( creatin% an Executive Order '!ic! created t!eCo&&ission, '!ic! sa(s, t!at t!is is an independent #od(, our :onor.

6ssociate Justice Nac!ura> O$a(. So, '!at (ou are sa(in% is, t!is is a creation o" t!e President, it is under t!e PresidentBs po'er o"control, #ut t!e President !as c!osen not to exercise t!e po'er o" control #( declarin% t!at it s!all #e an independent #od(

Solicitor 0eneral Cadi5> es, our :onor. 6ssociate Justice Nac!ura> !at is (our position. I 'ould li$e (ou to place t!at in (our &e&orandu& and see. I 'ould li$e to see!o' (ou 'ill develop t!at ar%u&ent.

!e Solicitor 0eneral, despite !is pro&ise to respond t!rou%! !is ;e&orandu&, never #ot!ered to explain point-#(-point !isunusual positions and conclusions durin% t!e oral ar%u&ents, respondin% onl( 'it! %eneralities t!at 'ere not responsive or inpoint.11

Speci"icall(, '!ile ad&ittin% t!at t!e rut! Co&&ission is a /creation/ o" t!e President under !is o""ice pursuant to t!e latterBsaut!orit( under t!e 6d&inistrative Code o" 1@9, t!e Solicitor 0eneral incon%ruousl( clai&ed t!at t!e Co&&ission is /independent/o" t!e O""ice o" t!e President and is not under !is control. ;erci"ull(, J. Nac!ura su%%ested t!at t!e President &a( !ave created a#od( under !is control #ut !as c!osen not to exercise t!e po'er o" control #( declarin% t!at it is an independent #od(, to '!ic! t!eSolicitor 0eneral "ull( a%reed.

rut! to tell 3no pun intended4, t!e Solicitor 0eneral appears under t!ese positions to #e pla(in% a game of smoke andmirrors 'it! t!e Court. or purposes o" t!e creation o" t!e rut! Co&&ission, !e posits t!at t!e &ove is "ull( 'it!in t!e PresidentBsaut!orit( and in t!e per"or&ance o" !is executive "unctions. !is clai&, o" course, &ust necessaril( #e #ased on t!e pre&ise t!atexecution is #( t!e President !i&sel" or #( people '!o are 'it!in t!e Executive Depart&ent and 'it!in t!e PresidentBs po'er o"supervision and control, as t!e President cannot dele%ate !is po'ers #e(ond t!e Executive Depart&ent. 6t t!e sa&e ti&e, !eclai&s t!at t!e Co&&issioners 3'!o& !e re"uses to re"er to as Presidential 6ssistants or as alter e%os o" t!e President4111 areindependent o" t!e President, apparentl( #ecause t!e President !as 'aived !is po'er o" control over t!e&.

6ll t!ese necessaril( lead to t!e <uestion> can t!e President reall( create an o""ice 'it!in t!e Executive #ranc! t!at is independent

o" !is control !e s!ort ans'er is !e cannot, and t!e s!ort reason a%ain is t!e constitutional plan. !e execution andi&ple&entation o" t!e la's !ave #een placed #( t!e Constitution on t!e s!oulders o" t!e President and on none ot!er.11) :e cannotdele%ate !is executive po'ers to an( person or entit( outside t!e Executive depart&ent except #( aut!orit( o" t!e Constitution ort!e la' 3'!ic! aut!orit( in t!is case !e does not !ave4, nor can !e dele%ate !is aut!orit( to underta$e "act-"indin% as an incident o"!is executive po'er, and at t!e sa&e ti&e ta$e t!e position t!at !e !as no responsi#ilit( "or t!e "act-"indin% #ecause it isindependent o" !i& and !is o""ice.

nder t!e constitutional plan, t!e creation o" t!is $ind o" o""ice 'it! t!is $ind o" independence is lod%ed onl( in t!e Le%islature.11* orexa&ple, it is onl( t!e Le%islature '!ic! can create a #od( li$e t!e National La#or Relations Co&&ission '!ose decisions are "inaland are neit!er appeala#le to t!e President nor to !is alter e%o, t!e Secretar( o" La#or.11+ et anot!er exa&ple, President Cora5on

6<uino !ersel", #ecause t!e creation o" an independent co&&ission 'as outside !er executive po'ers, dee&ed it necessar( to actpursuant to a le%islative "iat in constitutin% t!e "irst Davide Co&&ission o" [email protected]


















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6pparentl(, t!e President 'anted to create a separate, distinct and independent Co&&ission #ecause !e 'ants to continuousl(i&press upon t!e pu#lic !is audience in t!e second "oru& t!at t!is Co&&ission can tell t!e /trut!/ 'it!out an( control orpro&ptin% "ro& t!e O""ice o" t!e President and 'it!out need o" 'aitin% "or de"initive 'ord "ro& t!ose constitutionall(-assi%ned tounderta$e t!is tas$. :ere, trut!-tellin% a%ain rears its u%l( !ead and is un&as$ed "or '!at it reall( is an atte&pt to #(pass t!econstitutional plan on !o' cri&es are investi%ated and resolved 'it! "inalit(.

Ot!er'ise stated, i" indeed t!e President can create t!e Co&&ission as a "act-"indin% or investi%atin% #od(, t!e Co&&ission &ustper"orce #e an entit( t!at is 'it!in t!e Executive #ranc! and as suc! is su#=ect to t!e control and supervision o" t!e President. In

"act, t!e circu&stances surroundin% t!e existence o" t!e Co&&ission alread( outlined a#ove in ter&s o" its processes, "acilities,#ud%et and sta"" cannot #ut lead to control. Li$e'ise, i" indeed t!e rut! Co&&ission is under t!e control o" t!e President '!oissued t!e EO 'it! openl(-ad&itted political &otivation,118 t!en t!e Solicitor 0eneralBs representation a#out t!e Co&&issionBsindependentl(-arrived /trut!/ &a( "all under t!e classi"ication o" a s&o$e and &irror political &ove. Sad to state, t!e Solicitor0eneral c!ose to ai& "or t!e #est o" all 'orlds in &a$in% representations a#out t!e creation and t!e nature o" t!e Co&&ission. ecannot allo' t!is approac! to pass unnoticed and 'it!out t!e o#servations it deserves.

I =e re-e 4+ + r; -e:e-e Commo, =e =+ Commo m be cre+e- =ro6= + +c oCo6re o=er4e, =+ -e:e-e Commo 4 be + coo+ bo-;. Note as added exa&ples in t!is re%ardt!at previous presidential "act-"indin% #odies, created ei t!er #( Executive or 6d&inistrative Orders 3i.e., eliciano, ;elo, eQarosaand IIRC Co&&issions4, 'ere all part o" t!e Executive depart&ent and t!eir "indin%s, even 'it!out an( express representation in t!eorders creatin% t!e&, 'ere necessaril( su#=ect to t!e po'er o" t!e President to revie', alter, &odi"( or revise accordin% to t!e #est

=ud%&ent o" t!e President. !at t!e President '!o received t!ese co&&issionsB reports did not alter t!e reco&&endations &ade isnot an ar%u&ent t!at t!e President can create an /independent/ co&&ission, as t!e Presidents receivin% t!e co&&issionsB reportscould !ave, #ut si&pl( did not, c!oose to inter"ere 'it! t!ese past co&&issionsB "indin%s.

In su&, t!is Court cannot and s!ould not accept an arran%e&ent '!ere> 314 t!e President creates an o""ice pursuant to !isconstitutional po'er to execute t!e la's and to !is 6d&inistrative Code po'ers to reor%ani5e t!e Executive #ranc!, and 3)4 at t!esa&e ti&e or t!erea"ter allo' t!e President to disavo' an( lin$ 'it! t!e created #od( or its results t!rou%! a clai& o" independenceand 'aiver o" control. !is arran%e&ent #(passes and &oc$s t!e constitutional plan on t!e separation o" po'ersA a&on% ot!ers, itencroac!es into Con%ressB aut!orit( to create an o""ice. !is conse<uence &ust necessaril( #e "atal "or t!e arran%e&ent is ini&icalto t!e doctrine o" separation o" po'ers '!ose purpose, accordin% to at!er Joa<uin 2ernas, is>

to prevent concentration o" po'ers in one depart&ent and t!ere#( to avoid t(rann(. 2ut t!e price paid "or t!e insurance a%ainstt(rann( is t!e ris$ o" a de%ree o" ine""icienc( and even t!e dan%er o" %ridloc$. 6s Justice 2randeis put it, /t!e doctrine o" separationo" po'ers 'as adoptednot to pro&ote e""icienc( #ut to preclude t!e exercise o" ar#itrar( po'er. !e purpose 'as not to avoid"riction, #ut, #( &eans o" t!e inevita#le "riction incident to t!e distri#ution o" %overn&ental po'ers a&on% t!e t!ree depart&ents, tosave t!e people "ro& autocrac(./119

Indeed, to allo' one depart&ent o" %overn&ent, 'it!out t!e aut!orit( o" la' or t!e Constitution, to #e %ranted t!e aut!orit( to#esto' an advanced i&pri&atur o" /trut!/ #espea$s o" a concentration o" po'er t!at &a( 'ell overs!ado' an( initiative to co&#at

%ra"t and corruptionA in its o'n 'a(, t!is %rant itsel" is an open invitation to t!e ver( evils sou%!t to #e avoided.

E. 7IOL6IONS O :E RI0:S O IN7ESI06ED PERSONS

E.1 7iolation o" Personal Ri%!ts

Separatel( "ro& t!e a#ove e""ects, trut!-tellin% as envisioned under t!e EO, carries pre=udicial e""ects on t!e persons it i&&ediatel(tar%ets, na&el(> t!e o""icials, e&plo(ees and private individuals alle%ed to !ave co&&itted %ra"t and corruption durin% t!e previousad&inistration. !is conse<uence proceeds "ro& t!e a#ove discussed trut!-tellin% pre&ise t!at '!et!er t!e Co&&ission reports3reco&&endin% t!e c!ar%in% o" speci"ic individuals4 are proven or not in t!e appropriate courts t!e Co&&issionBs "unction o" trut!-tellin% "unction 'ould !ave #een served and t!e Co&&ission 'ould !ave e""ectivel( acted a%ainst t!e c!ar%ed individuals.

!e &ost o#vious pre=udicial e""ect o" t!e trut!-tellin% "unction on t!e persons investi%ated is on t!eir persons, reputation andpropert(. Si&pl( #ein% sin%led out as /c!ar%ed/ in a trut!-tellin% report 'ill inevita#l( &ean distur#ance o" oneBs routines, activities

and relations!ipsA t!e preparation "or a de"ense t!at 'ill cost &one(, ti&e and ener%(A c!an%es in personal, =o# and #usinessrelations!ips 'it! ot!ersA and adverse e""ects on =o#s and #usinesses. orse, reputations can "orever #e tarnis!ed a"ter one isla#elled as a participant in &assive %ra"t and corruption.

Conceiva#l(, t!ese pre=udicial e""ects &a( #e dis&issed as speculative ar%u&ents t!at are not =usti"ied #( an( supportin% evidenceand, !ence, cannot e""ectivel( #e cited as "actual #asis "or t!e invalidit( o" t!e EO. Evidence, !o'ever, is !ardl( necessar( '!eret!e pre=udicial e""ects are sel"-evident, i.e., %iven t!at t!e announced and undisputed %overn&ent position t!at trut!-tellin% per se, int!e &anner envisioned #( t!e EO and its i&ple&entin% rules, is an independent o#=ective t!e %overn&ent 'ants to ac!ieve. !ent!e %overn&ent itsel" !as #een !eard on t!e /trut!,/ t!e pro#a#ilit( o" pre=udice "or t!e individual c!ar%ed is not onl( a li$eli!oodA itapproac!es t!e level o" certaint(.






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In testin% t!e validit( o" a %overn&ent act or statute, suc! potential "or !ar& su""ices to invalidate t!e c!allen%ed actA evidence o"actual !ar& is not necessar( in t!e 'a( it is necessar( "or a cri&inal conviction or to =usti"( an a'ard "or da&a%es. In plainer ter&s,t!e certaint( o" conse<uent da&a%e re<uires no evidence or "urt!er reasonin% '!en t!e %overn&ent itsel" declares t!at "or as lon%as t!e /stor(/ o" t!e alle%edl( &assive %ra"t and corruption durin% t!e past ad&inistration is told, t!e Co&&ission 'ould !ave"ul"illed one o" its "unctions to satis"actionA under t!is rec$less approac!, it is sel"-evident t!at t!e &ista$en o#=ect o" t!e /trut!/ told&ust necessaril( su""er.

In t!e context o" t!is e""ect, t!e %overn&ent state&ent translates to t!e &essa%e> "or%et t!e da&a%e t!e persons investi%ated &a(

su""er on t!eir persons and reputationA "or%et t!e ri%!ts t!e( are entitled to under t!e ConstitutionA %ive pri&ac( to t!e stor( told. !is$ind o" &essa%e, o" course, is unaccepta#le under a Constitution t!at esta#lis!es t!e stron%est sa"e%uards, t!rou%! t!e 2ill o"Ri%!ts, in "avor o" t!e individualBs ri%!t to li"e, securit( and propert( a%ainst t!e over'!el&in% &i%!t o" t!e %overn&ent.

&.> 3enial of the right to a fair criminal trial.

!e essence o" t!e due process %uarantee in a cri&inal case, as provided under Section 1+314 o" t!e Constitution, is t!e ri%!t to a"air trial. !at is "air depends on co&pliance 'it! t!e express %uarantees o" t!e Constitution, and on t!e circu&stances o" eac!case.

!en t!e Co&&issionBs report itsel" is c!aracteri5ed, prior to trial, and !eld out #( t!e %overn&ent to #e t!e true stor( o" t!e %ra"tand corruption c!ar%ed, t!e c!ances o" individuals to !ave a "air trial in a su#se<uent cri&inal case cannot #e ver( %reat.

Consider on t!is point t!at not even t!e &ain actors in t!e cri&inal =ustice s(ste& t!e O&#uds&an, t!e Sandi%an#a(an and even

t!is Court can avoid t!e cloud o" /untrut!/ and a dou#t"ul taint in t!eir inte%rit( a"ter t!e %overn&ent !as pu#lici5ed t!eCo&&issionBs "indin%s as t!e trut!. I" t!e rulin%s o" t!ese constitutional #odies t!e&selves can #e suspect, individual de"enses "orsure cannot rise an( !i%!er.

!ere t!e %overn&ent si&pl( 'ants to tell its stor(, alread( la#elled as true, 'ell a!ead o" an( court proceedin%s, and =udicialnotice is ta$en o" t!e $ind o" pu#licit( and t!e "er&ent in pu#lic opinion t!at ne's o" %overn&ent scandals %enerate, it does notre<uire a leap o" "ait! to conclude t!at an accused #rou%!t to court a%ainst over'!el&in% pu#lic opinion starts !is case 'it! a lesst!an e<ual c!ance o" ac<uittal. !e presu&ption o" innocence not'it!standin%, t!e pla(in% "ield cannot #ut #e uneven in a cri&inaltrial '!en t!e accused enters trial 'it! a %overn&ent-sponsored #ad%e o" %uilt on !is "ore!ead.11@ !e presu&ption o" innocence inla' cannot serve an accused in a #iased at&osp!ere pointin% to %uilt in "act #ecause t!e %overn&ent and pu#lic opinion !avespo$en a%ainst t!e accused.

7ie'ed "ro& t!e perspective o" its cause, t!e pre=udicial pu#licit(, t!at adversel( a""ects t!e c!ances o" an accused "or a "air triala"ter t!e EO !as done its =o#, is not t!e $ind t!at occurs solel( #ecause o" t!e identit( o" t!e individual accused. !is pre=udiceresults "ro& a cause s(ste&ic to t!e EO #ecause o" its trut!-tellin% "eature t!at allo's t!e %overn&ent to call its proceedin%s andreports a process o" trut!-tellin% '!ere t!e tales cannot #ut #e true. !is $ind o" s(ste&ic a#erration !as no place in t!e countr(Bs

dispensation o" cri&inal =ustice s(ste& and s!ould #e struc$ do'n as invalid #e"ore it can "ull( 'or$ itsel" into t!e cri&inal =ustices(ste& as an accepta#le intervention.

4 . :E R: CO;;ISSION 6ND :E E6L PROECION CL6SE

!e %uarantee o" e<ual protection o" t!e la' is a #ranc! o" t!e ri%!t to due process e&#odied in 6rticle III, Section 1 o" t!eConstitution. It is rooted in t!e sa&e concept o" "airness t!at underlies t!e due process clause. In its si&plest sense, it re<uirese<ual treat&ent, i.e., t!e a#sence o" discri&ination, "or all t!ose under t!e sa&e situation. 6n earl( case, People v.Ca(at,11 articulated t!e re<uisites deter&inative o" valid and reasona#le classi"ication under t!e e<ual protection clause, and statedt!at it &ust

314 rest on su#stantial distinctionsA

3)4 #e %er&ane to t!e purpose o" t!e la'A

3*4 not #e li&ited to existin% conditions onl(A and

3+4 appl( e<uall( to all &e&#ers o" t!e sa&e class.

In our =urisdiction, 'e &ainl( decide e<ual protection c!allen%es usin% a "r+o+ b+" test, coupled 'it! a /de"erential/ scrutin(o" le%islative classi"ications and a reluctance to invalidate a la' unless t!ere is a s!o'in% o" a clear and une<uivocal #reac! o" t!eConstitution.1) Our vie's on t!e &atter, !o'ever, !ave not re&ained static, and !ave #een attuned to t!e =urisprudentialdevelop&ents in t!e nited States on t!e levels o" scrutin( t!at are applied to deter&ine t!e accepta#ilit( o" an( di""erences intreat&ent t!at &a( result "ro& t!e la'. 1)1













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Serrano v. 0allant ;ariti&e Services, Inc.1)) su&&ari5es t!e t!ree tests e&plo(ed in t!is =urisdiction as "ollo's>

!ere are t!ree levels o" scrutin( at '!ic! t!e Court revie's t!e constitutionalit( o" a classi"ication e&#odied in a la'> a4 t!ede"erential or rational #asis scrutin( in '!ic! t!e c!allen%ed classi"ication needs onl( #e s!o'n to #e rationall( related to servin% ale%iti&ate state interestA #4 t!e &iddle-tier or inter&ediate scrutin( in '!ic! t!e %overn&ent &ust s!o' t!at t!e c!allen%edclassi"ication serves an i&portant state interest and t!at t!e classi"ication is at least su#stantiall( related to servin% t!at interestA andc4 strict =udicial scrutin( in '!ic! a le%islative classi"ication '!ic! i&per&issi#l( inter"eres 'it! t!e exercise o" a "unda&ental ri%!t oroperates to t!e peculiar disadvanta%e o" a suspect class is presu&ed unconstitutional, and t!e #urden is upon t!e %overn&ent to

prove t!at t!e classi"ication is necessar( to ac!ieve a compelling state interest and t!at it is t!e least restrictive means toprotect suc! interest. KE&p!asis suppliedG

!e &ost exactin% o" t!e t!ree tests is evidentl( t!e strict scrutin( test, '!ic! re<uires t!e %overn&ent to s!o' t!at t!e c!allen%edclassi"ication serves a co&pellin% state interest and t!at t!e classi"ication is necessar( to serve t!at interest.1)* 2rie"l( stated, t!estrict scrutin( test is applied '!en t!e c!allen%ed statute eit!er>

314 classi"ies on t!e #asis o" an in!erentl( suspect c!aracteristicA or

3)4 in"rin%es "unda&ental constitutional ri%!ts.

In t!ese situations, t!e usual presu&ption o" constitutionalit( is reversed, and it "alls upon t!e %overn&ent to de&onstrate t!at itsclassi"ication !as #een narro'l( tailored to "urt!er co&pellin% %overn&ental interestsA ot!er'ise, t!e la' s!all #e declaredunconstitutional "or violatin% t!e e<ual protection clause.1)+

In EO 1, "or t!e "irst ti&e in P!ilippine !istor(, t!e Executive created a pu#lic o""ice to address t!e /reports o" %ra"t and corruption o"suc! &a%nitude t!at s!oc$ and o""end t!e &oral and et!ical sensi#ilities o" t!e people, co&&itted.durin% t!e previousad&inistration/ t!rou%! "act-"indin%, polic( "or&ulation and trut!-tellin%.1) !ile "act-"indin% !as #een underta$en #( previousinvesti%ative co&&issions "or purposes o" possi#le prosecution and polic(-"or&ulation, a "irst "or t!e current rut! Co&&ission is itstas$ o" trut!-tellin%. !e Co&&ission not onl( !as to investi%ate reported %ra"t and corruptionA it also !as t!e aut!orit( to announceto t!e pu#lic t!e /trut!/ re%ardin% alle%ed %ra"t and corruption co&&itted durin% t!e previous ad&inistration.

EO 1Bs pro#le& 'it! t!e e<ual protection clause lies in t!e trut!-tellin% "unction it %ave t!e rut! Co&&ission.

6s extensivel( discussed earlier in t!is Opinion, trut!-tellin% is not an ordinar( tas$, as t!e Co&&issionBs reports to t!e %overn&entand t!e pu#lic are alread( %iven t!e i&pri&atur o" trut! 'a( #e"ore t!e alle%ations o" %ra"t and corruption are ever proven in court.!is "eature, #( itsel", is a uni<ue di""erential treat&ent t!at cannot #ut #e considered in t!e application o" t!e =urisprudential e<ualprotection clause re<uire&ents.

E<uall( uni<ue is t!e "ocus o" t!e Co&&issionBs investi%ation - it solel( addresses alle%ed %ra"t and corruption co&&itted durin% t!epast ad&inistration. !is "ocus is "urt!er narro'ed do'n to /t!ird level pu#lic o""icers and !i%!er, t!eir co-principal, acco&plices andaccessories "ro& t!e private sector, i" an(, durin% t!e previous ad&inistration./1)8 nder t!ese ter&s, t!e su#=ect o" t!e EO is li&itedonl( to a ver( select %roup t!e !i%!est o""icials, not an( ordinar( %overn&ent o""icial at t!e ti&e. Nota#l( excluded under t!eseexpress ter&s are t!ird level and !i%!er o""icials o" ot!er previous ad&inistrations '!o can still #e possi#l( #e c!ar%ed o" si&ilarlevels o" %ra"t and corruption t!e( &i%!t !ave perpetrated durin% t!eir incu&#enc(. Li$e'ise excepted are t!e t!ird level o""icials o"t!e present ad&inistration '!o &a( li$e'ise co&&it t!e sa&e level o" %ra"t and corruption durin% t!e ter& o" t!e Co&&ission.

!us, "ro& t!e points o" trut!-tellin% and t!e "ocus on t!e people to #e investi%ated, at least a dou#le la(er o" di""erential treat&entc!aracteri5es t!e rut! Co&&issionBs investi%ation. 0iven t!ese disparate treat&ent, t!e e<ual protection <uestion t!at arises is>does t!e resultin% classi"ication and se%re%ation o" t!ird level o""icials o" t!e previous ad&inistration and t!eir di""erential treat&entrest on su#stantial distinctions Stated &ore plainl(, is t!ere reasona#le #asis to di""erentiate t!e o""icials o" t!e previousad&inistration, #ot! "ro& t!e "ocus %iven to t!e& in relation 'it! all ot!er o""icials as pointed out a#ove, and in t!e trut!-tellin%treat&ent accorded to t!e& #( t!e Co&&ission

Still a deeper <uestion to #e ans'ered is> '!at level o" scrutin( s!ould #e %iven to t!e patent discri&ination in "ocus and intreat&ent t!at t!e EO a#ets 6lt!ou%! t!is <uestion is stated last, it s!ould !ave #een t!e initial consideration, as its deter&ination%overns t!e level o" scrutin( to #e accordedA i" t!e strict scrutin( test is appropriate, t!e %overn&ent, not t!e part( <uestionin% aclassi"ication, carries t!e #urden o" s!o'in% t!at per&issi#le classi"ication too$ place. !is critical consideration partl( accounts, too,"or t!e rele%ation to t!e last, a&on% t!e EOBs cited %rounds "or invalidit(, o" t!e e<ual protection clause violationA t!e applica#le levelo" scrutin( &a( depend on t!e prior deter&ination o" '!et!er, as !eld in Serrano, t!e disparate treat&ent is attended #(in"rin%e&ent o" "unda&ental constitutional ri%!ts.

/unda&ental ri%!ts/ '!ose in"rin%e&ent leads to strict scrutin( under t!e e<ual protection clause are t!ose #asic li#erties explicitl(or i&plicitl( %uaranteed in t!e Constitution. Justice Carpio-;orales, alt!ou%! in dissent in Central 2an$ E&plo(ees 6ssociation, Inc.v. 2an%$o Sentral n% Pilipinas,1)9 ela#orated on t!is point '!en s!e said>

















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;ost "unda&ental ri%!ts cases decided in t!e nited States re<uire e<ual protection anal(sis #ecause t!ese cases 'ould involve arevie' o" statutes '!ic! classi"( persons and i&pose di""erin% restrictions on t!e a#ilit( o" a certain class o" persons to exercise a"unda&ental ri%!t. unda&ental ri%!ts include onl( t!ose #asic li#erties explicitl( or i&plicitl( %uaranteed #( t!e .S. Constitution.

6nd precisel( #ecause t!ese statutes a""ect "unda&ental li#erties, an( experi&ent involvin% #asic "reedo&s '!ic! t!e le%islatureconducts &ust #e criticall( exa&ined under t!e lens o" Strict Scrutin(.

unda&ental ri%!ts '!ic! %ive rise to Strict Scrutin( include t!e ri%!t o" procreation, t!e ri%!t to &arr(, t!e ri%!t to exercise irst 6&end&ent "reedo&s suc! as "ree speec!, political expression, press, asse&#l(, and so "ort!, t!e ri%!t to travel, and t!e ri%!t to

vote. KE&p!asis suppliedG

In t!e present case, as s!o'n #( t!e previousl( cited %rounds "or t!e EOBs invalidit(, EO No. 1 in"rin%es t!e personal due processri%!ts o" t!e investi%ated persons, as 'ell as t!eir constitutional ri%!t to a "air trial. Indisputa#l(, #ot! t!ese ri%!ts one o" t!e&%uaranteed under Section 1, 6rticle III, and under Section 1+ o" t!e sa&e 6rticle are, #( =urisprudential de"inition, "unda&entalri%!ts. it! t!ese in"rin%e&ents, t!e <uestion no' t!us s!i"ts to t!e application o" t!e strict scrutin( test an exercise not novel int!is =urisdiction.

In t!e a#ove-cited Central 2an$ E&plo(ees 6ssociation, Inc. case,1)@ 'e stated>

Con%ress retains its 'ide discretion in providin% "or a valid classi"ication, and its policies s!ould #e accorded reco%nition and respect#( t!e courts o" =ustice except '!en t!e( run a"oul o" t!e Constitution. T=e -eerece o: 4=ere =e c+c+o o+e +-+me+ r6=, or :reE-ce :ero +ccor-e- :ec+ :roeco b; =e Coo. !en t!ese violations arise, t!isCourt &ust disc!ar%e its pri&ar( role as t!e van%uard o" constitutional %uaranties, +- rere + rcer +- more e<+c6+-=erece o coo+ m+o. Rational #asis s!ould not su""ice.

xxx

B =e c=+e6e o =e +e :reme- o =e -e+ o + -+me+ r6=, or =e :er:e+o o :reE-ce +6+:ero +ore- b; =e Coo 4= :ec+ :roeco, E-c+ cr; o6= o be more rc. 6 'ea$ and 'atereddo'n vie' 'ould call "or t!e a#dication o" t!is CourtBs sole&n dut( to stri$e do'n an( la' repu%nant to t!e Constitution and t!eri%!ts it ens!rines. !is is true '!et!er t!e actor co&&ittin% t!e unconstitutional act is a private person or t!e %overn&ent itsel" orone o" its instru&entalities. Oppressive acts 'ill #e struc$ do'n re%ardless o" t!e c!aracter or nature o" t!e actor. Knderscorin%suppliedG

Stripped o" t!e usual de"erence accorded to it, t!e %overn&ent &ust s!o' t!at a co&pellin% state interest exists to =usti"( t!edi""erential treat&ent t!at EO 1 "osters.

Serrano v. 0allant ;ariti&e Services, Inc.1) !elp"ull( tells us t!e co&pellin% state interest t!at is critical in a strict scrutin(

exa&ination>

!at constitutes co&pellin% state interest is &easured #( t!e scale o" ri%!ts and po'ers arra(ed in t!e Constitution and cali#rated#( !istor(. It is a$in to t!e para&ount interest o" t!e state "or '!ic! so&e individual li#erties &ust %ive 'a(, suc! as t!e pu#licinterest in sa"e%uardin% !ealt! or &aintainin% &edical standards, or in &aintainin% access to in"or&ation on &atters o" pu#licconcern.

In t!is sa&e cited case, t!e Court cate%oricall( ruled t!at /t!e #urden is upon t!e %overn&ent to prove t!at t!e classi"ication isnecessar( to ac!ieve a compelling state interest and t!at it is t!e least restrictive means to protect suc! interest./1*

On its "ace, t!e co&pellin% state interest t!e EO cites is t!e /ur%ent call "or t!e deter&ination o" t!e trut! re%ardin% certain reports o"lar%e scale %ra"t and corruption in t!e %overn&ent and to put a closure to t!e& #( t!e "ilin% o" t!e appropriate cases a%ainst t!oseinvolved i" 'arranted, and to deter ot!ers "ro& co&&ittin% t!e evil, restore t!e peopleBs "ait! and con"idence in t!e 0overn&ent andin t!eir pu#lic servants./1*1 nder t!ese ter&s, '!at appears i&portant to t!e %overn&ent as &eans or &ediu&s in its "i%!t a%ainst%ra"t and corruption are 314 to expose t!e %ra"t and corruption t!e past ad&inistration co&&ittedA 3)4 to prosecute t!e &ale"actors, i"

possi#leA and 3*4 to set an exa&ple "or ot!ers. !et!er a co&pellin% State interest exists can #est #e tested t!rou%! t!e pris& o"t!e &eans t!e %overn&ent !as opted to utili5e.

In t!e usual course and irrespective o" '!o t!e &ale"actors are and '!en t!e( co&&itted t!eir trans%ressions, %ra"ters andcorruptors ou%!t to #e prosecuted. !is is not onl( a %oal #ut a dut( o" %overn&ent. !us, #( itsel", t!e prosecution t!at t!e EOenvisions is not an( di""erent "ro& all ot!er actions t!e %overn&ent underta$es da( to da( under t!e cri&inal =ustice s(ste& inproceedin% a%ainst t!e %ra"ters and t!e corrupt. In ot!er 'ords, expressed as a dut(, t!e co&pellin% drive to prosecute &ust #e t!esa&e irrespective o" t!e ad&inistration under '!ic! t!e %ra"t and corruption 'ere perpetrated. I" indeed t!is is so, '!at co&pellin%reasons can t!ere #e to drive t!e %overn&ent to use t!e EO and its unusual ter&s in proceedin% a%ainst t!e o""icials o" t!e previousad&inistration












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I" t!e EOBs ter&s are to #e t!e (ardstic$, t!e #asis "or t!e separate "ocus is t!e /extent and &a%nitude/ o" t!e reported %ra"t andcorruption '!ic! /s!oc$ and o""end t!e &oral and et!ical sensi#ilities o" t!e people./ !at t!is /extent and &a%nitude/ is or '!atspeci"ic incidents o" &assive %ra"t are re"erred to, !o'ever, !ave #een le"t va%ue. Li$e'ise, no explanation !as #een %iven on '!(special &easures i.e., t!e special "ocus on t!e tar%eted o""icials, t!e creation o" a ne' o""ice, and t!e %rant o" trut!-tellin% aut!orit(

!ave #een ta$en.

E""ectivel(, #( actin% as !e did, t!e President si&pl( %ave t!e Co&&ission t!e license to an open !untin% season to tell t!e /trut!/a%ainst t!e previous ad&inistrationA t!e Co&&ission can investi%ate an alle%ed sin%le #illion-peso sca&, as 'ell as transactions

durin% t!e past ad&inistration t!at, collectivel(, &a( reac! t!e sa&e a&ount. Onl( t!e Co&&ission, in its 'isdo&, is to =ud%e '!atalle%ations or reports o" %ra"t and corruption to cover "or as lon% as t!ese 'ere durin% t!e past ad&inistration. In t!e a#sence o" an(speci"ic %uidin% principle or directive, indicative o" its rationale, t!e conclusion is unavoida#le t!at t!e EO carries no specialco&pellin% reason to sin%le out o""icials o" t!e previous ad&inistrationA '!at is i&portant is t!at t!e %ra"t #e attri#uted to t!e previousad&inistration. In ot!er 'ords, t!e real reason "or t!e EOBs "ocus lies else'!ere, not necessaril( in t!e nature or extent o" t!e&atters to #e investi%ated.

I", as stron%l( !inted #( t!e Solicitor 0eneral, dissatis"action exists re%ardin% t!e O&#uds&anBs 5eal, e""orts, results, and lac$ o"i&partialit(, t!ese concerns s!ould #e addressed t!rou%! t!e re&edies provided under t!e Constitution and t!e la's, not #(#(passin% t!e esta#lis!ed re&edies under t!ese instru&ents. Certainl(, t!e re&ed( is not t!rou%! t!e creation o" ne' pu#lic o""ice'it!out t!e aut!orit( o" Con%ress.

Ever( success"ul prosecution o" a %ra"t and corruption violation ou%!t to #e an opportunit( to set an exa&ple and to send a&essa%e to t!e pu#lic t!at t!e %overn&ent seriousl( intends to disc!ar%e its duties and responsi#ilities in t!e area o" %ra"t andcorruption. o #e sure, t!e conviction o" a t!ird level o""icer is a !i%! pro"ile acco&plis!&ent t!at t!e %overn&ent can and s!ould

announce to all as evidence o" its e""orts and o" t!e lesson t!at t!e conviction conve(s. !is %overn&entBs acco&plis!&ent,!o'ever, does not need to #e a%ainst an o""icial or o""icials o" t!e previous ad&inistration in order to #e a lessonA it can #e an( t!irdlevel or !i%!er o""icial "ro& an( ad&inistration, includin% t!e present. &n fact, the present administration’s serious intent infighting graft may all the more be highlighted if it will also proceed against its own people.

It is note'ort!( t!at t!e ter&s o" t!e EO itsel" do not provide an( speci"ic reason '!(, "or purposes o" conve(in% a &essa%e a%ainst%ra"t and corruption, t!e "ocus s!ould #e on o""icials o" t!e previous ad&inistration under t!e EOBs special trut!-tellin% ter&s. 6s&entioned a#ove, t!e extent o" t!e alle%ed %ra"t and corruption durin% t!e previous ad&inistration does not appear to #e a su""icientreason "or distinction under t!e EOBs va%ue ter&s. 6dditionall(, i" a lesson "or t!e pu#lic is reall( intended, t!e %overn&ent alread(!as si&ilar success"ul prosecutions to its credit and can !ave &an( &ore %rap!ic exa&ples to dra' "ro&A it does not need to #edriven to unusual &eans to s!o' t!e %ra"t and corruption co&&itted under t!e previous ad&inistration. !e !ost o" exa&ples and&et!odolo%ies alread( availa#le to t!e %overn&ent onl( de&onstrate t!at t!e "ocus on, and di""erential treat&ent o", speci"ic o""icials"or pu#lic lesson purposes involves a classi"ication unsupported #( an( special overridin% reason.

0iven t!e lac$ o" su""icientl( co&pellin% reasons to use t'o 3)4 o" t!e t!ree 3*4 o#=ectives or interests t!e %overn&ent cited in EO 1,'!at is le"t o" t!ese expressed interests is si&pl( t!e desire to expose t!e %ra"t and corruption t!e previous ad&inistration &i%!t

!ave co&&itted. Interestin%l(, t!e EO itsel" partl( provides t!e %uidin% spirit t!at &i%!t !ave &oved t!e Executive to its intendedexpose as it una#as!edl( points to t!e PresidentBs pro&ise &ade in t!e last election /Mun% 'alan% corrupt, 'alan%&a!irap./1*) !ere, too, is t!e Solicitor 0eneralBs ver( calculated state&ent t!at trut!-tellin% is an end in itsel" t!at t!e EO 'is!es toac!ieve.

Juxtaposin% t!ese overt indicators 'it! t!e EOBs sin%leness o" "ocus on t!e previous ad&inistration, '!at e&er%es in #old relie" ist!e conclusion t!at t!e EO 'as issued lar%el( "or political ends> t!e President 'ants !is election pro&ise "ul"illed in a dra&atic andun"or%etta#le 'a(A none could #e &ore so t!an cri&inal convictions, or at least, exposure o" t!e /trut!/ t!at 'ould "orever &ar$ !ispolitical opponentsA t!us, t!e "ocus on t!e previous ad&inistration and t!e stress on esta#lis!in% t!eir corrupt 'a(s as t!e /trut!./

7ie'ed in t!ese li%!ts, t!e political &otivation #e!ind t!e EO #eco&es inescapa#le. Political considerations, o" course, cannot #econsidered a le%iti&ate state purpose as #asis "or proper classi"ication.1** !e( &a( #e speciall( co&pellin% #ut onl( "or t!e point o"vie' o" a political part( or interest, not "ro& t!e point o" vie' o" an e<ualit(-sensitive State.

In su&, no su""icient and co&pellin% state interest appears to #e served #( t!e EO to =usti"( t!e di""erential treat&ent o" t!e past

ad&inistrationBs o""icials. In "act, exposure o" t!e sins o" t!e previous ad&inistration t!rou%! trut!-tellin% s!ould not even #e vie'edas /least restrictive/ as it is in "act a &eans 'it! pernicious e""ects on %overn&ent and on t!ird parties.

or t!ese reasons, t!e conclusion t!at t!e EO violates t!e e<ual protection clause is unavoida#le.

0. 6 E L6S ORDS

Our rulin% in t!is case s!ould not in an( 'a( detract "ro& t!e concept t!at t!e Judiciar( is t!e least dan%erous #ranc! o"%overn&ent. !e Judiciar( !as no direct control over polic( nor over t!e national purse, in t!e 'a( t!at t!e Le%islature does. Neit!erdoes it i&ple&ent la's nor exercise po'er over t!ose '!o can en"orce la's and national polic(. 6ll t!at it !as is t!e po'er to







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sa"e%uard t!e Constitution in a &anner independent o" t!e t'o ot!er #ranc!es o" %overn&ent. Ours is &erel( t!e po'er to c!ec$and ensure t!at constitutional po'ers and %uarantees are o#served, and constitutional li&its are not violated.

nder t!is constitutional arran%e&ent, t!e Judiciar( o""ers t!e least t!reat to t!e people and t!eir ri%!ts, and t!e least t!reat, too, tot!e t'o ot!er #ranc!es o" %overn&ent. I" 'e rule a%ainst t!e ot!er t'o #ranc!es o" %overn&ent at all in cases properl( #rou%!t#e"ore us, 'e do so onl( to exercise our s'orn dut( under t!e Constitution. e do not prevent t!e t'o ot!er #ranc!es "ro&underta$in% t!eir respective constitutional rolesA 'e &erel( con"ine t!e& to t!e li&its set #( t!e Constitution.

!is is !o' 'e vie' our present action in declarin% t!e invalidit( o" EO 1. e do not t!ere#( i&pu%n t!e no#ilit( o" t!e ExecutiveBso#=ective o" "i%!tin% %ra"t and corruption. e si&pl( tell t!e Executive to secure t!is o#=ective 'it!in t!e &eans and &anner t!eConstitution ordains, per!aps in a 'a( t!at 'ould ena#le us to "ull( support t!e Executive.

o #e sure, no cause exists to even i&pliedl( use t!e ter& /i&perial =udiciar(/ 1*+ in c!aracteri5in% our action in t!is case.

!is Court, #( constitutional desi%n and "or %ood reasons, is not an elective #od( and, as alread( stated a#ove, !as neit!er reasonnor occasion to delve into politics t!e real& alread( occupied #( t!e t'o ot!er #ranc!es o" %overn&ent. It cannot exercise an(ascendanc( over t!e t'o ot!er #ranc!es o" %overn&ent as it is, in "act, dependent on t!ese t'o #ranc!es in &an( 'a(s, &ostparticularl( "or its #ud%et, "or t!e la's and policies t!at are t!e &ain su#=ects "or its interpretation, and "or t!e en"orce&ent o" itsdecisions. !ile it !as t!e po'er to interpret t!e Constitution, t!e Judiciar( itsel", !o'ever, is su#=ect to t!e sa&e Constitution and,"or t!is reason, &ust in "act #e ver( care"ul and 5ealous in ensurin% t!at it respects t!e ver( instru&ent it is s'orn to sa"e%uard. eare a'are, too, t!at 'e /cannot #e t!e repositor( o" all re&edies/1* and cannot presu&e t!at 'e can cure all t!e ills o" societ(t!rou%! t!e po'ers t!e Constitution extended to us. !us, t!is Court #( its nature and "unctions cannot #e in an( 'a( #e/i&perial,/ nor !as it an( intention to #e so. Ot!er'ise, 'e ourselves s!all violate t!e ver( instru&ent 'e are s'orn to up!old.

6s evident in t!e 'a( t!is Court resolved t!e present case, it !ad no 'a( #ut to declare EO invalid "or t!e &an( reasons set "ort!a#ove. !e cited %rounds are neit!er "li&s( nor contrivedA t!e( rest on solid le%al #ases. n"ortunatel(, no ot!er approac! exists inconstitutional interpretation except to construe t!e assailed %overn&ental issuances in t!eir #est possi#le li%!ts or to re"lect t!esee""ects in a creative 'a( '!ere t!ese approac!es are at all possi#le. Even construction in t!e #est li%!ts or a creative interpretation,!o'ever, cannot #e done '!ere t!e cited %rounds are &a=or, %rave and a""ect t!e ver( core o" t!e contested issuance t!esituation 'e !ave in t!e present case.

Nor can t!is Court #e too active or creative in advocatin% a position "or or a%ainst a cause 'it!out ris$in% its inte%rit( in t!eper"or&ance o" its role as t!e &iddle &an 'it! t!e aut!orit( to decide disputed constitutional issues. !e #etter 3and sa"er4 course"or de&ocrac( is to !ave a Court t!at !olds on to traditional values, departin% "ro& t!ese values onl( '!en t!ese values !ave#eco&e inconsistent 'it! t!e spirit and intent o" t!e Constitution.

In t!e present case, as s!ould #e evident in readin% t!e ponencia and t!is Separate Opinion, 'e !ave closel( ad!ered to traditionallines. I" t!is can #e called activis& at all, 'e !ave #een an activist "or tradition. !ere#(, 'e invalidated t!e act o" t!e Executive

'it!out !o'ever "oreclosin% or =eopardi5in% !is opportunit( to 'or$ "or t!e sa&e o#=ective in so&e "uture, &ore le%all( reasoned,and #etter "ra&ed course o" action.

ARTURO D. BRION 6ssociate Justice

$oooe

1 Constitution, 6rticle III, Section 1 and 1+, '!ic! states>

Section 1. No person s!all #e deprived o" li"e, li#ert(, or propert( 'it!out due process o" la', nor s!all an(

person #e denied t!e e<ual protection o" t!e la's.

Section 1+. 314 No person s!all #e !eld to ans'er "or a cri&inal o""ense 'it!out due process o" la'.

3)4 In all cri&inal prosecutions, t!e accused s!all #e presu&ed innocent until t!e contrar( is proved, and s!allen=o( t!e ri%!t to #e !eard #( !i&sel" and counsel, to #e in"or&ed o" t!e nature and cause o" t!e accusationa%ainst !i&, to !ave a speed(, i&partial, and pu#lic trial, to &eet t!e 'itnesses "ace to "ace, and to !aveco&pulsor( process to secure t!e attendance o" 'itnesses and t!e production o" evidence in !is #e!al".:o'ever, a"ter arrai%n&ent, trial &a( proceed not'it!standin% t!e a#sence o" t!e accused> Provided , t!at !e!as #een dul( noti"ied and !is "ailure to appear is un=usti"ia#le.





http://www.lawphil.net/judjuris/juri2010/dec2010/gr_192935_2010.html#rnt1b





8/13/2019 G.R. No. 192935 December 7, 2010


) Executive Order No. 1, /Cre+6 =e =::e Tr= Commo o 2010," Seco 1.

* SN, Septe&#er )@, )1, pp. )*, *-+, ), 8, 9*-9, 1)*-1)8.

+ Id. at 1@).

Id. at @-8.

8 EO 1, Section 1, par. ).

9 Id., Section ), para%rap!s. : and IA Sections *, + and .

@ Id., Sections 1), 1*.

Id., Section 11.

1 Id., Section ) 3#4.

11 Id., Sections ) 3c4, 3d4, 3e4, 3"4, 3%4, 3!4, 3i4 and 8.

1) Id., Section 8.

1* Id., Section ).

1+ Id., Section 1.

1 Id., Section 9.

18 Id., Section @.

19 Resolution 1, /Rules o" Procedure o" t!e P!ilippine rut! Co&&ission,/ Septe&#er ), )1.

1@ Rules, Rule +, Section 13#4.

1 Id., Rule +, Section 13#4, para%rap! ).

) Rules, Rule +, Section ).

)1 EO 1, Section @.

)) Rules, Rule .

)* Petitioner La%&anBs Petition "or Certiorari , rollo, pp. *+-+*A RespondentsB ;e&orandu&, id . at *))-*)*.

)+ See ;ar$ ree&an, rut! Co&&issions and Procedural airness 3)84.

)

ree&an, supra note )+ at 1)-1* citin% Priscilla :a(ner, nspea$a#le rut!s> acin% t!e C!allen%e o" rut!Co&&issions 3)nd ed., )+4, p. 1+.

)8 ree&an, supra note )+ at 1+ Kree&an points out t!at :a(ner o&itted t!e ele&ent in t!e de"inition t!at /trut!co&&issions "ocus on severe acts o" violence or repression./ :e stated "urt!er t!at /KsGuc! acts &a( ta$e &an( "or&s,ran%in% "ro& ar#itrar( detention to torture to en"orced disappearance to su&&ar( execution./

)9 !eresa Mloster&an, !e easi#ilit( and Propriet( o" a rut! Co&&ission in Ca&#odia> oo Little oo Late 1 6ri5.J. Intl U Co&p. L. @**, @+*-@++ 31@4. See also Priscilla :a(ner, 4ifteen ruth Commissions <?@A to <??A7 %Comparative tudy, 18 :;. RS. . 9, 8, 89 31+4.





























































8/13/2019 G.R. No. 192935 December 7, 2010


)@ 6n atte&pt !as #een &ade durin% t!e oral ar%u&ents to c!aracteri5e &assive %ra"t and corruption as a violation o"!u&an ri%!ts, #ut t!is c!aracteri5ation does not appear to #e #ased on t!e settled de"inition o" !u&an ri%!ts 3SN, Sept.9, )1, p. @*-@+4.

) See 7illanueva v. C6, 0.R. No. 11)1, Januar( )@, 1@, )@ SCR6 1@A a#ia v. I6C, 0.R. No. L-8811 Nove&#er)1, 1@+, 1** SCR6 *8+A Lacoste v. :ernande5, 0.R. No. L-8*98-9, ;a( )1, 1@+, 1) SCR6 *9*A Lu v. or$s!ireInsurance, +* P!il. 8** 31))4A People v. ;acasina%, 0.R. No. L-1@99, 6u%ust 1@, 1)), +* P!il. 89+ 31))4A Correa v.;ateo, P!il. 9 31*4A People v. ;acasina%, +* P!il. 89+ 31))4.

* See Joa<uin 0. 2ernas, S.J. !e 1@9 Constitution O" !e Repu#lic O" !e P!ilippines> 6 Co&&entar( 3) ed.4, p.11@.

*1 See Id. at 11, citin% .S. v. ori#io, 1 P!il. @ 3114, '!ic! <uoted La'ton v. Steel>

KGhe tate may interfere wherever the public interests demand it, and in this particular a large discretion isnecessarily vested in the legislature to determine, not only what the interests of the public re8uire, but whatmeasures are necessary for the protection of such interests. 32ar#ier vs. Connoll(, 11* .S. )9A Midd vs.Pearson, 1)@ .S. 1.4 o =usti"( t!e State in t!us interposin% its aut!orit( in #e!al" o" t!e pu#lic, it &ust appear,"irst, t!at t!e interests o" t!e pu#lic %enerall(, as distin%uis!ed "ro& t!ose o" a particular class, re<uire suc!inter"erenceA and, second, t!at t!e &eans are reasona#l( necessar( "or t!e acco&plis!&ent o" t!e purpose,and not undul( oppressive upon individuals. !e le%islature &a( not, under t!e %uise o" protectin% t!e pu#licinterests, ar#itraril( inter"ere 'it! private #usiness, or i&pose unusual and unnecessar( restrictions upon la'"uloccupations. In ot!er 'ords, its deter&ination as to '!at is a proper exercise o" its police po'ers is not "inal or

conclusive, #ut is su#=ect to t!e supervision o" t!e court.

*) Repu#lic 6ct No. 899, Section 1, par.1, Nove&#er 19, 1@, /6n 6ct Providin% or t!e unctional and StructuralOr%ani5ation o" t!e O""ice o" t!e O&#uds&an, and or Ot!er Purposes,/ See also O&#uds&an v. Enoc, 0.R. Nos.1+9-8@, Januar( ), )), *9+ SCR6 81. See also O&#uds&an v. 2reva, 0.R. No. 1+*@, e#ruar( 1, )8, +@)SCR6 1@).

** Presidential Decree No. 188, Dece&#er 1, 19@, /Revisin% Presidential Decree No. 1+@8, Creatin% a Special Court to#e $no'n as Sandi%an#a(an and "or ot!er purposes,/ as a&ended #( Repu#lic 6ct No. @)+, e#ruar( , 19, /6n 6cturt!er De"inin% t!e Jurisdiction o" t!e Sandi%an#a(an, 6&endin% or !e Purpose Presidential Decree No. 188, 6s

6&ended, Providin% unds !ere"or, 6nd or Ot!er Purposes./ See also PC00 v. :on. E&&anuel 0. PeQa, etc., etal., 0.R. No. L-9988*, 6pril 1), 1@@, 1 SCR6 8.

*+ 6d . at 81-8), citin% Presidential Decree No. 188, Section 9, '!ic! provides t!at /decisions and "inal orders Ko" t!eSandi%an#a(anG s!all #e su#=ect o" revie' on certiorari #( t!e Supre&e Court in accordance 'it! Rule + o" t!e Rules o"

Court./

* SN, Septe&#er )@, )1, pp. @8, 1+9.

*8 !e Dissent o" J. Sereno itsel" ec!oes and reec!oes 'it! t!e trut!-tellin% intent o" t!e rut! Co&&ission and evenspea$s o" /t!e need to s!ape collective &e&or( as a 'a( "or t!e pu#lic to con"ront in=ustice and &ove to'ards a &ore

=ust societ(/ 3p. )9, dissent4. It proceeds to clai& t!at t!is Separate Opinion /eli&inates t!e vital role o" t!e ilipino peoplein constructin% collective &e&ories o" in=ustices as #asis "or redress./ J. SerenoBs Dissentin% Opinion, pp. )9-)@.

*9 SN, Septe&#er )@, )1, pp. 1+8 1+9.

*@ See e.%. 2il#i=a, et al., eds., !e 6rt o" rut! ellin% 6#out 6ut!oritarian Rule 3)4, p. 1+.

* Constitution, 6rticle ?I, Sections 1) and 1*.

+ Supra note *.

+1 See ree&an, supra note )+, pp. @@-1.

+) See ree&an, id. at @@.

+* Constitution, 6rticle III, Section 1+ 3)4, supra note 1.

































8/13/2019 G.R. No. 192935 December 7, 2010


++ Constitution, 6rticle III, Section 19.

+ Constitution, 6rticle III, Section 1).

+8 SN, Septe&#er )@, )1, pp. 1+-11.

+9 !e Co&&ission is #ound to "urnis! t!e O&#uds&an a cop( o" its partial and "inal reports "or t!e O&#uds&anBsconsideration and action, under Sec. ) o" t!e EO.

+@ EO 1, Section 18.

+ See %enerall( ;alcol& 0lad'ell, 2lin$ 3)4A see also, Cardo5o, !e Nature o" t!e Judicial Process, pp. 189-1@, andas <uoted else'!ere in t!is Separate Opinion, in"ra note .

J. CarpioBs Dissentin% Opinion, pp. 1-)11.

1 J. SerenoBs Dissentin% Opinion, pp. )- ).

) SN, Septe&#er )@, )1, p. .

*

See 0lad'ell, supra note +, pp. +-9*.

+ 2orn ;a( )+, 1@9, Ne' or$A died Jul( , 1*@, Port C!ester, N. S Supre&e Court 1*)-1*@. :e 'as also aJud%e o" N Court o" 6ppeals "ro& 11+ to 1*), and 'as its C!ie" Jud%e in t!e last 8 (ears o" !is ter& 'it! t!e Court o"

6ppeals. See !ttp>FF'''.courts.state.n(.usF!istor(Fcardo5o.!t& Klast visited Dece&#er ), )1G.

2en=a&in N. Cardo5o, !e Nature o" t!e Judicial Process, 31)14.

8 Id. at 19-198.

9 6ccordin% to a recent SS Surve( conducted "ro& Octo#er )-), )1!ttp>FF'''.&#.co&.p!FarticlesF)@9@**F@-"ilipinos-still-trust-a<uino-despite-ratin%s-dip Klast visited Nove&#er 19, )1G.

@ Supra note , pp. 19@-19, citin% 4oreign Corporations in %merican Constitutional (aw , p. 18+ c". Po'ell /!e

C!an%in% La' o" orei%n Corporations,/ ** Pol. Science uarterl(, p. 8.

Rules, Rule +, Section ).

8 Constitution, 6rticle 7III, Section ). See also 2ernas, supra note *, p. .

81 Id., 6rticle 7III, Section 9 3)4.

8) People v. ;aceren, 0.R. No. L-*)188 Octo#er 1@, 199, 9 SCR6 +, +81 citin% 1 6&. Jur. )nd, sec. 1)9, p. *@Aexas Co. v. ;ont%o&er(, 9* . Supp. )9> It !as #een !eld t!at /to declare '!at s!all constitute a cri&e and !o' it s!all#e punis!ed is a po'er vested exclusivel( in t!e le%islature, and it &a( not #e dele%ated to an( ot!er #od( or a%enc(./

8* Constitution, 6rticle 7III, Section .

8+ Constitution, 6rticle 7III, Section @.

8 Revised 6d&inistrative Code, 2oo$ II, C!apter II, Section )).

88 :onasan II v. !e Panel o" Investi%atin% Prosecutors o" t!e Depart&ent o" Justice, 0.R. No. 19+9, 6pril 1*, )+,+)9 SCR6 +8. See also O&#uds&an v. Enoc, supra note *).

89 See 2atas Pa&#ansa 2l%. 1), /6n 6ct Reor%ani5in% t!e Judiciar(, 6ppropriatin% unds !ere"or, and or Ot!erPurposes./












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8/13/2019 G.R. No. 192935 December 7, 2010


8@ Repu#lic 6ct No. @)+, supra note **, Section +.

8 Constitution, 6rticle 7III, Section 34.

9 Id., 6rticle 7III, Section 384.

91 Id., 6rticle 7III, Section 8.

9) Revised 6d&inistrative Code, C!apter I, itle III, 2oo$ I7. See also :onasan II v. Panel o" Investi%ators, supra note 88.

9* I#id. See Section 1, par. 1, Repu#lic 6ct No. 899.

9+ or o""icials in Salar( 0rade )9 and #e(ond.

9 Constitution, 6rticle III, Section 9.

98 Id., 6rticle III, Section +.

99 :onasan II v. Panel o" Investi%ators, supra note 88.

9@ See :onasan II v. Panel o" Investi%ators, supra note 88. See also Rules o" Court, Rule 11), Sections ) and +.

9 Revised 6d&inistrative Code, C!apter 3D4, itle II, 2oo$ III.

@ 2lac$Bs La' Dictionar( 3t! ed., 194, p. **.

@1 2u$lod n% Ma'anin% EII2 v. Executive Secretar(, 0.R. Nos. 1+)@1-@), Jul( 1, )1, *8 SCR6 91@, 9)8, citin%Isa%ani Cru5, !e La' on Pu#lic O""icers 31 ed.4, p. +.

@) EO 1, Section 1.

@* EO 1, Sections * and .

@+

EO 1, Section 1.

@ SN, Septe&#er )@, )1, p. 188.

@8 See !ttp>FF'''.%&ane's.tvFstor(F)1+8F"ull-text-iirc-report-on-au%ust-)*-)1-ri5al-par$-!osta%e-ta$in%-incident, Klastvisited Nove&#er 19, )1G.

@9 See Jonat!an :oro'it5, Racial 3Re4 Construction> !e Case o" t!e Sout! 6"rican rut! and Reconciliation Co&&ission,19 Natl 2lac$ L.J. 89 3)*4A Evel(n 2radle(, In Searc! "or Justice 6 rut! and Reconciliation Co&&ission "or R'anda,9 J. Intl L. U Prac. 1) 31@4.

@@ See Cat!erine OBRour$e, !e S!i"tin% Si%ni"ier o" /Co&&unit( in ransitional Justice> 6 e&inist 6nal(sis[ )* is. J.L.0ender U Soc( )8 3)@4 citin% ransitional Justice and Rule o" La' Interest 0roup, 6&erican Societ( o" InternationalLa', State&ent o" Purpose, !ttp>FF'''.asil.or%Finterest-%roups-vie'.c"&%roupidT*).

@ Isa%ani Cru5, P!ilippine Political La' 31@ ed.4 p. 9. See also 2ernas, supra note *, pp. 898-899, statin%> /!us, an(po'er, dee&ed to #e le%islative #( usa%e and tradition, is necessaril( possessed #( Con%ress./

6bid . See also Canoni5ado v. 6%uirre, 0.R. No. 1**1*), Januar( ), ), *)* SCR6 *1)A 2u$lod n% Ma'anin% EII2 v.a&ora, 0.R. Nos. 1+)@1-@), Jul( 1, )1, *8 SCR6 91@.

1 2ernas, supra note *, p. 89@.

) EO 1, @t! and last !ereas Clause.




















http://var/Documents%20and%20Settings/Arturo%20D.%20Brion/Local%20Settings/Temp/See%20http:/www.gmanews.tv/story/201465/full-text-iirc-report-on-august-23-2010-rizal-park-hostage-taking-incident



































8/13/2019 G.R. No. 192935 December 7, 2010


* 2u$lod n% Ma'anin% EII2 v. :on. Executive Secretar(, supra note @1.

+ Solicitor 0eneralBs ;e&orandu&, rollo, p. **).

Id. at *)+.

8 0.R. No. 11)9+, Octo#er 18, 19, )@ SCR6 91*.

9 Solicitor 0eneralBs Consolidated Co&&ent, rollo, pp. 1+@-1+.

@ %8uino v. C!0&(&C, No. L-++, Januar( *1, 19, 8) SCR6 )9.

0on5ales v. P60COR, 0. R. No. 1++@1, ;a( )9, )+, +) SCR6 **,+.

1 0.R. No. 1888), 6pril ), )1.

11 Supra note 8.

1) Supra note @1.

1* 0.R. No. 189*)+, Jul( 19, )9, )9 SCR6 9+8.

1+ J. CarpioBs Separate Concurrin% Opinion. Supra note 1.

1 Solicitor 0eneralBs Consolidated Co&&ent, rollo, p. 18.

18 Id. at +1.

19 1* .S. 1, 31@4.

1@ 2ernas, supra note *, p. @.

1 SN, Septe&#er )@, )1, pp. )-)1+.

11 Part o" t!e ar%u&ent t!e Solicitor 0eneral relied upon 'as Depart&ent o" :ealt! v. Ca&pasano, 30.R. No. 198@+. 6pril )9, ), +9 SCR6 +*@4 Solicitor 0eneralBs Consolidated Co&&ent, rollo, pp. 1+-1+8. Reliance on t!is case,!o'ever, is &isplaced. In Ca&pasano, t!e Court up!eld t!e po'er o" t!e President to create an ad !oc investi%atin%co&&ittee in t!e Depart&ent o" :ealt! on t!e #asis o" t!e PresidentBs constitutional po'er o" control over t!e ExecutiveDepart&ent as 'ell as !is o#li%ation under t!e "ait!"ul execution clause to ensure t!at all executive o""icials ande&plo(ees "ait!"ull( co&pl( 'it! t!e la'. !e CourtBs rulin% in Ca&pasano is not deter&inative o" t!e present case as t!erut! Co&&ission is clai&ed to #e a #od( entirel( distinct and independent "ro& t!e O""ice o" t!e President. !isconclusion is #olstered #( t!e Solicitor 0eneralBs o'n ad&ission durin% oral ar%u&ents t!at t!e rut! Co&&ission,particularl( t!e Co&&issioners are not under t!e po'er o" control #( t!e President. In "act, t!e Solicitor 0eneral 'ent as"ar as to ad&it t!at t!e President !as in "act relin<uis!ed t!e po'er o" control over t!e Co&&ission to underscore itsindependence.

111 SN, Septe&#er )@, )1, p. )1+.

11)

Constitution, 6rticle 7II, Section 1> H!e Executive Po'er s!all #e vested in t!e President o" t!e P!ilippines./ See2ernas, supra note *, p. @)> /it! t!e 1@9 Constitution, t!e constitutional s(ste& returns to t!e presidential &odel o"t!e 1* Constitution> executive po'er is vested in t!e President./ at!er 2ernas "urt!er states> /In vestin% executivepo'er in one person rat!er t!an in a plural executive, t!e evident intention 'as to invest t!e po'er !older 'it! ener%(./

11* Constitution, 6rticle 7I, Section 1> /!e le%islative po'er s!all #e vested in t!e Con%ress o" t!e P!ilippines '!ic! s!allconsist o" a Senate and a :ouse o" Representatives, except to t!e extent reserved to t!e people #( t!e provision oninitiative and re"erendu&./ See 7era v. 6velino, 99 P!il. 1), )1) 31+84> /an( po'er, dee&ed to #e le%islative #( usa%eand tradition, is necessaril( possessed #( Con%ress x x x/ cited in 2ernas, supra note *, pp. 898-899.

























































8/13/2019 G.R. No. 192935 December 7, 2010


11+ Even in t!e case o" t!e NLRC, !o'ever, presidential control cannot #e avoided as t!e NLRC is part o" t!e Executive#ranc! and t!e President, t!rou%! !is Secretar( o" La#or, sets t!e policies on la#or and e&plo(&ent 3expressed t!rou%!rules and re%ulations and interpretation4 t!at, consistent 'it! t!e existin% la's and =urisprudence, &ust #e "ollo'ed.

11 Repu#lic 6ct 8@*), ot!er'ise $no'n as /6n 6ct Creatin% 6 Co&&ission o Conduct 6 !orou%! act-indin%Investi%ation O" !e ailed Coup D\]tat O" Dece&#er 1@, Reco&&end ;easures o Prevent !e Occurrence O"Si&ilar 6tte&pts 6t 6 7iolent Sei5ure O" Po'er, 6nd or Ot!er Purposes./ Its Section 1 provides>

Section 1. Creation, O#=ectives and Po'ers. W !ere is !ere#( created an -e:e-e Commo '!ic!s!all investi%ate all t!e "acts and circu&stances o" t!e "ailed coup d^tat o" Dece&#er 1@, and reco&&end&easures to prevent si&ilar atte&pts at a violent sei5ure o" po'er. KE&p!asis suppliedG

118 See 8t! !ereas Clause, EO 1.

119 2ernas, supra note *, p. 89@.

11@ See e.%. 6llenet de Ri#e&ont v. rance, e#ruar( 1, 1, 119F@ K1G EC:R , '!ere t!e European Court o":u&an Ri%!ts !eld t!at t!e ri%!t to presu&ption o" innocence &a( #e /in"rin%ed not onl( #( a =ud%e or court #ut also #(ot!er pu#lic aut!orities./ !e EC:R li$e'ise !eld>

!e presu&ption o" innocence ens!rined in para%rap! ) o" 6rticle 8 3art. 8-)4 is one o" t!e ele&ents o" t!e "aircri&inal trial t!at is re<uired #( para%rap! 1 3art. 8-14 3see, a&on% ot!er aut!orities, t!e De'eer v. 2el%iu&

=ud%&ent, o" )9 e#ruar( 1@, Series 6 no. *, p. *, para. 8, and t!e ;inelli =ud%&ent previousl( cited, p.1, para. )94. It 'ill #e violated i" a =udicial decision concernin% a person c!ar%ed 'it! a cri&inal o""ence re"lectsan opinion t!at !e is %uilt( #e"ore !e !as #een proved %uilt( accordin% to la'. It su""ices, even in t!e a#sence o"an( "or&al "indin%, t!at t!ere is so&e reasonin% su%%estin% t!at t!e court re%ards t!e accused as %uilt( 3see t!e;inelli =ud%&ent previousl( cited, p. 1@, para. *94. Ke&p!asis suppliedG

11 8@ P!il. 1) 31*4.

1) Central 2an$ E&plo(ees 6ssociation, Inc. v. 2an%$o Sentral n% Pilipinas, 0.R. No. 1+@)@, Dece&#er 1, )+, ++8SCR6 ), *9.

1)1 See Central 2an$ E&plo(ees 6ssociation, Inc. v. 2an%$o Sental n% Pilipinas, id., '!ere t!e Court expanded t!econcept o" suspect classi"icationA See also Serrano v. 0allant ;ariti&e Services, Inc., in"ra '!ere t!e Court applied t!estrict scrutin( test.

1)) 0.R. No. 18981+, ;arc! )+ ), @) SCR6 )+, )99-)9@.

1)* Supra note *, pp. 1*-1+.

1)+ J. Carpio-;oralesB Dissentin% Opinion. Supra note 1), p. +@.

1) See Ite& I 3c4 o" t!is Concurrin% Opinion, p. @.

1)8 EO 1, Section ).

1)9 Supra note 1), pp. +-+8.

1)@ Id. at *@9, *.

1) Supra note 1), p. )8.

1* Id. at )9@ citin% 0rutter v. 2ollin%er,* S *8 3)*4A 2ernal v. ainter, +89 S )18 31@+4.

1*1 EO 1, t! !ereas Clause.

1*) EO 1, 8t! !ereas Clause.


























































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1** Car#onaro v. Ree!er, *) . Supp. 9* 3E.D. Pa. 194.

1*+ See t!en 6ssociate Justice Re(nato S. PunoBs Concurrin% and Dissentin% Opinion in rancisco, Jr. v. Na%&a&alasa$itna &%a ;ananan%%ol n% &%a ;an%%a%a'an% Pilipino, Inc., 0.R. No. 18)81, Nove&#er 1, )*, +1 SCR6 ++, )11,'!ere "or&er C!ie" Justice Puno spo$e o" an /i&perial =udiciar(,/ vi5>

!e 1@9 Constitution expanded t!e para&eters o" =udicial po'er, #ut t!at #( no &eans is a =usti"ication "or t!e

errant t!ou%!t t!at t!e Constitution created an i&perial =udiciar(. 6n i&perial =udiciar( co&posed o" t!eunelected, '!ose sole constituenc( is t!e #lind"olded lad( 'it!out t!e ri%!t to vote, is counter-&a=oritarian,!ence, in!erentl( ini&ical to t!e central ideal o" de&ocrac(. e cannot pretend to #e an i&perial =udiciar( "or ina %overn&ent '!ose cornerstone rests on t!e doctrine o" separation o" po'ers, 'e cannot #e t!e repositor( o"all re&edies.

1* I#id.


S!ARAT! OINION

B!RSA#IN, J.:

I re%ister &( "ull concurrence 'it! t!e ;a=orit(Bs 'ell reasoned conclusion to stri$e do'n Executive Order No. 1 3E.O. No. 14 "or itsincura#le unconstitutionalit(.

I s!are and adopt t!e perspectives o" &( collea%ues in t!e ;a=orit( on '!( t!e issuance !as to #e struc$ do'n. I render t!isSeparate Opinion onl( to express so&e t!ou%!ts on a "e' &atters.

ILocus Standi o" Petitioners

I !old t!at t!e petitioners !ave locus standi.

In particular re"erence to t!e petitioners in 0.R. No. 1**8, I t!in$ t!at t!eir #ein% incu&#ent ;e&#ers o" t!e :ouse o"Representatives %ave t!e& t!e re<uisite le%al standin% to c!allen%e E. O. No. 1 as an i&per&issi#le intrusion o" t!e Executive intot!e do&ain o" t!e Le%islature. Indeed, to t!e extent t!at t!e po'ers o" Con%ress are i&paired, so is t!e po'er o" eac! ;e&#er,'!ose o""ice con"ers a ri%!t to participate in t!e exercise o" t!e po'ers o" t!at institutionA conse<uentl(, an act o" t!e Executive t!atin=ures t!e institution o" Con%ress causes a derivative #ut nonet!eless su#stantial in=ur( t!at a ;e&#er o" Con%ress canassail.1 ;oreover, an( intrusion o" one Depart&ent in t!e do&ain o" anot!er Depart&ent di&inis!es t!e endurin% idea underl(in%t!e incorporation in t!e unda&ental La' o" t!e ti&e-!onored repu#lican concept o" separation o" po'ers.

Justice ;endo5aBs &ain opinion, '!ic! 'ell explains '!( t!e petitioners !ave locus standi, is con%ruent 'it! &( vie' on t!e &attert!at I expressed in 3e Castro v. -udicial and )ar Council, et al.,) vi5>

2lac$ de"ines locus standi as /a ri%!t o" appearance in a court o" =ustice on a %iven <uestion./ In pu#lic or constitutional liti%ations,t!e Court is o"ten #urdened 'it! t!e deter&ination o" t!e locus standi o" t!e petitioners due to t!e ever-present need to re%ulate t!einvocation o" t!e intervention o" t!e Court to correct an( o""icial action or polic( in order to avoid o#structin% t!e e""icient "unctionin%o" pu#lic o""icials and o""ices involved in pu#lic service. It is re<uired, t!ere"ore, t!at t!e petitioner &ust !ave a personal sta$e in t!eoutco&e o" t!e controvers(, "or, as indicated in 6%an, Jr. v. P!ilippine International 6ir er&inals Co., Inc.>

!e <uestion on le%al standin% is '!et!er suc! parties !ave /alle%ed suc! a personal sta$e in t!e outco&e o" t!e controvers( as toassure t!at concrete adverseness '!ic! s!arpens t!e presentation o" issues upon '!ic! t!e court so lar%el( depends "orillu&ination o" di""icult constitutional <uestions./ 6ccordin%l(, it !as #een !eld t!at t!e interest o" a person assailin% t!econstitutionalit( o" a statute &ust #e direct and personal. :e &ust #e a#le to s!o', not onl( t!at t!e la' or an( %overn&ent act isinvalid, #ut also t!at !e sustained or is in i&&inent dan%er o" sustainin% so&e direct in=ur( as a result o" its en"orce&ent, and not&erel( t!at !e su""ers t!ere#( in so&e inde"inite 'a(. It &ust appear t!at t!e person co&plainin% !as #een or is a#out to #e deniedso&e ri%!t or privile%e to '!ic! !e is la'"ull( entitled or t!at !e is a#out to #e su#=ected to so&e #urdens or penalties #( reason o"t!e statute or act co&plained o".







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It is true t!at as earl( as in 1*9, in People v. /era, t!e Court adopted t!e direct in=ur( test "or deter&inin% '!et!er a petitioner in apu#lic action !ad locus standi. !ere, t!e Court !eld t!at t!e person '!o 'ould assail t!e validit( o" a statute &ust !ave /a personaland su#stantial interest in t!e case suc! t!at !e !as sustained, or 'ill sustain direct in=ur( as a result./ /era 'as "ollo'edin Custodio v. President of the enate, 0anila 'ace 1orse rainers2 %ssociation v. 3e la 4uente, %nti5Chinese (eague of thePhilippines v. 4eli+, and Pascual v. ecretary of Public Wor*s.

et, t!e Court !as also !eld t!at t!e re<uire&ent o" locus standi , #ein% a &ere procedural tec!nicalit(, can #e 'aived #( t!e Courtin t!e exercise o" its discretion. or instance, in 1+, in %raneta v. 3inglasan, t!e Court li#erali5ed t!e approac! '!en t!e cases

!ad /transcendental i&portance./ So&e nota#le controversies '!ose petitioners did not pass t!e direct injury test 'ere allo'ed to#e treated in t!e sa&e 'a( as in %raneta v. 3inglasan.

In t!e 19 decision in %8uino v. Commission on &lections, t!is Court decided to resolve t!e issues raised #( t!e petition due tot!eir /"ar-reac!in% i&plications,/ even i" t!e petitioner !ad no personalit( to "ile t!e suit. !e li#eral approac! o" %8uino v.Commission on &lections !as #een adopted in several nota#le cases, per&ittin% ordinar( citi5ens, le%islators, and civicor%ani5ations to #rin% t!eir suits involvin% t!e constitutionalit( or validit( o" la's, re%ulations, and rulin%s.

:o'ever, t!e assertion o" a pu#lic ri%!t as a predicate "or c!allen%in% a supposedl( ille%al or unconstitutional executive or le%islativeaction rests on t!e t!eor( t!at t!e petitioner represents t!e pu#lic in %eneral. 6lt!ou%! suc! petitioner &a( not #e as adversel(a""ected #( t!e action co&plained a%ainst as are ot!ers, it is enou%! t!at !e su""icientl( de&onstrates in !is petition t!at !e isentitled to protection or relie" "ro& t!e Court in t!e vindication o" a pu#lic ri%!t.

uite o"ten, as !ere, t!e petitioner in a pu#lic action sues as a citi5en or taxpa(er to %ain locus standi. !at is not surprisin%, "oreven i" t!e issue &a( appear to concern onl( t!e pu#lic in %eneral, suc! capacities nonet!eless e<uip t!e petitioner 'it! ade<uate

interest to sue. In 3avid v. 0acapagal5%rroyo, t!e Court aptl( explains '!(>

Case la' in &ost =urisdictions no' allo's #ot! /citi5en/ and /taxpa(er/ standin% in pu#lic actions. !e distinction 'as "irst laid do'nin )eauchamp v. il* , '!ere it 'as !eld t!at t!e plainti"" in a taxpa(erBs suit is in a di""erent cate%or( "ro& t!e plainti"" in a citi5enBssuit. In t!e "or&er, t!e plainti"" is a""ected #( t!e expenditure o" pu#lic "unds, '!ile in t!e latter, !e is #ut t!e &ere instru&ent o" t!epu#lic concern. 6s !eld #( t!e Ne' or$ Supre&e Court in People e+ rel Case v. Collins> /In &atter o" &ere pu#lic ri%!t, !o'evert!e people are t!e real partiesIt is at least t!e ri%!t, i" not t!e dut(, o" ever( citi5en to inter"ere and see t!at a pu#lic o""ence #eproperl( pursued and punis!ed, and t!at a pu#lic %rievance #e re&edied./ it! respect to taxpa(erBs suits, err v. -ordan !eld t!at/t!e ri%!t o" a citi5en and a taxpa(er to &aintain an action in courts to restrain t!e unla'"ul use o" pu#lic "unds to !is in=ur( cannot #edenied./

xxx

In an( event, t!e Court retains t!e #road discretion to 'aive t!e re<uire&ent o" le%al standin% in "avor o" an( petitioner '!en t!e&atter involved !as transcendental i&portance, or ot!er'ise re<uires a li#erali5ation o" t!e re<uire&ent.

et, i" an( dou#t still lin%ers a#out t!e locus standi o" an( petitioner, 'e dispel t!e dou#t no' in order to re&ove an( o#stacle oro#struction to t!e resolution o" t!e essential issue s<uarel( presented !erein. e are not to s!ir$ "ro& disc!ar%in% our sole&n dut(#( reason alone o" an o#stacle &ore tec!nical t!an ot!er'ise. In 6%an, Jr. v. P!ilippine International 6ir er&inals Co., Inc., 'epointed out> /Standin% is a peculiar concept in constitutional la' #ecause in so&e cases, suits are not #rou%!t #( parties '!o !ave#een personall( in=ured #( t!e operation o" a la' or an( ot!er %overn&ent act #ut #( concerned citi5ens, taxpa(ers or voters '!oactuall( sue in t!e pu#lic interest./ 2ut even i", strictl( spea$in%, t!e petitioners /are not covered #( t!e de"inition, it is still 'it!in t!e'ide discretion o" t!e Court to 'aive t!e re<uire&ent and so re&ove t!e i&pedi&ent to its addressin% and resolvin% t!e seriousconstitutional <uestions raised./

IIT=e re-e + No o4er o Cre+e A bc Oce

6 pu#lic o""ice &a( #e created onl( t!rou%! an( o" t!e "ollo'in% &odes, na&el(> 3a4 #( t!e ConstitutionA or 3#4 #( statute enacted #(Con%ressA or 3c4 #( aut!orit( o" la' 3t!rou%! a valid dele%ation o" po'er4.*

!e po'er to create a pu#lic o""ice is essentiall( le%islative, and, t!ere"ore, it #elon%s to Con%ress. It is not s!ared #( Con%ress 'it!t!e President, until and unless Con%ress enacts le%islation t!at dele%ates a part o" t!e po'er to t!e President, or an( ot!er o""icer ora%enc(.

et, t!e Solicitor 0eneral contends t!at t!e le%al #asis "or t!e PresidentBs creation o" t!e rut! Co&&ission t!rou%! E. O. No. 1 isSection *1, C!apter 1, 2oo$ III, o" t!e 6d&inistrative Code o" 1@9.

Section *1, C!apter 1, 2oo$ III, o" t!e 6d&inistrative Code o" 1@9, '!ic! reads>




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Section *1. Continuin% 6ut!orit( o" t!e President to Reor%ani5e !is O""ice. !e President, su#=ect to t!e polic( in t!e ExecutiveO""ice and in order to ac!ieve si&plicit(, econo&( and e""icienc(, s!all !ave continuin% aut!orit( to reor%ani5e t!e ad&inistrative

structure o" t!e O""ice o" t!e President. or t!is purpose, !e &a( ta$e an( o" t!e "ollo'in% actions>

1. Restructure t!e internal or%ani5ation o" t!e O""ice o" t!e President Proper, includin% t!e i&&ediate O""ices, t!ePresidential Special 6ssistantsF6dvisers S(ste&, #( a#olis!in%, consolidatin% or &er%in% units t!ereo" or trans"errin%"unctions "ro& one unit to anot!erA

). rans"er an( "unction under t!e O""ice o" t!e President to an( ot!er Depart&ent or 6%enc( as 'ell as trans"er "unctionsto t!e O""ice o" t!e President "ro& ot!er Depart&ents and 6%enciesA and

*. rans"er an( a%enc( under t!e O""ice o" t!e President to an( ot!er depart&ent or a%enc( as 'ell as trans"er a%enciesto t!e O""ice o" t!e President "ro& ot!er depart&ents or a%encies.

no'!ere re"ers to t!e creation o" a pu#lic o""ice #( t!e President. On t!e contrar(, onl( a little e""ort is needed to $no' "ro& readin%t!e text o" t!e provision t!at '!at !as #een %ranted is l i&ited to an aut!orit( "or reor%ani5ation t!rou%! an( o" t!e &odes expressl(&entioned in t!e provision.

!e rut! Co&&ission !as not existed #e"ore E. O. No. 1 %ave it li"e on Jul( *, )1. it!out a dou#t, it is a ne' o""ice, so&et!in%'e co&e to $no' "ro& t!e plain 'ords o" Section 1 o" E. O. No. 1 itsel", to 'it>

Seco 1. Cre+o o + Commo. !ere is !ere#( created t!e ILIIN! TRUT CO##ISSION, !ereina"ter re"erred to

as t!e "CO##ISSION" , '!ic! s!all pri&aril( see$ and "ind t!e trut! on, and to'ard t!is end, investi%ate reports o" %ra"t andcorruption o" suc! scale and &a%nitude t!at s!oc$ and o""end t!e &oral and et!ical sensi#ilities o" t!e people, co&&itted #( pu#lico""icers and e&plo(ees, t!eir co-principals, acco&plices and accessories "ro& t!e private sector, i" an(, durin% t!e previousad&inistrationA and t!erea"ter reco&&end t!e appropriate action or &easure to #e ta$en t!ereon to ensure t!at t!e "ull &easure o"



I" t!e rut! Co&&ission is an entirel( ne' o""ice, t!en it is not t!e result o" an( reor%ani5ation underta$en pursuant to Section *1,C!apter 1, 2oo$ III, o" t!e 6d&inistrative Code o" 1@9. !us, t!e contention o" t!e Solicitor 0eneral is a#solutel( un'arranted.

Neit!er &a( t!e creation o" t!e rut! Co&&ission #e &ade to rest "or its validit( on t!e "act t!at t!e Constitution, t!rou%! its Section19, 6rticle 7II, invests t!e President 'it! t!e dut( to ensure t!at t!e la's are "ait!"ull( executed. In &( vie', t!e dut( o" "ait!"ulexecution o" t!e la's necessaril( presu&es t!e prior existence o" a la' or rule to execute on t!e part o" t!e President. 2ut, !ere,t!ere is no la' or rule t!at t!e President !as #ased !is issuance o" E. O. No. 1.

I cannot also #rin% &(sel" to accept t!e notion t!at t!e creation o" t!e rut! Co&&ission is tracea#le to t!e PresidentBs po'er o"control over t!e Executive Depart&ent. It is alread( settled t!at t!e PresidentBs po'er o" control can onl( &ean /t!e po'er o" ano""icer to alter, &odi"(, or set aside '!at a su#ordinate o""icer !ad done in t!e per"or&ance o" !is duties, and to su#stitute t!e

=ud%&ent o" t!e "or&er "or t!at o" t!e latter./+ 6s suc!, t!e creation #( t!e President o" a pu#lic o""ice li$e t!e rut! Co&&ission,'it!out eit!er a provision o" t!e Constitution or a proper la' enacted #(

Con%ress aut!ori5in% suc! creation, is not an act t!at t!e po'er o" control includes.

IIIrut! Co&&ission Replicates and surps t!e

Duties and unctions o" t!eO""ice o" t!e O&#uds&an

I "ind t!at t!e rut! Co&&ission replicates and usurps t!e duties and "unctions o" t!e O""ice o" t!e O&#uds&an. :ence, t!e rut!Co&&ission is super"luous and &a( erode t!e pu#lic trust and con"idence in t!e O""ice o" t!e O&#uds&an.

!e O""ice o" t!e O&#uds&an is a constitutionall(-created <uasi-=udicial #od( esta#lis!ed to investi%ate and prosecute ille%al actsand o&issions o" t!ose '!o serve in t!e 0overn&ent. Section , 6rticle ?I o" t!e 1@9 Constitution enu&erates t!e po'ers,"unctions, and duties o" t!e O""ice o" t!e O&#uds&an, includin% t!e po'er to>

314 Investi%ate on its o'n, or on co&plaint #( an( person, an( act or o&ission o" an( pu#lic o""icial, e&plo(ee, o""ice or a%enc(,'!en suc! act or o&ission appears to #e ille%al, un=ust, i&proper, or ine""icient.

x x x




8/13/2019 G.R. No. 192935 December 7, 2010


8/13/2019 G.R. No. 192935 December 7, 2010


x x x

;ada& President, t!e creation o" an O&#uds&an x x x is in ans'er to t!e cr(in% need o" our people "or an !onest and responsive%overn&ent. !e o""ice o" t!e O&#uds&an as proposed #( t!e Co&&ittee on 6ccounta#ilit( o" Pu#lic O""icers, x x x is reall( aninstitution pri&aril( "or t!e citi5ens as a%ainst t!e &alpractices and corruption in t!e %overn&ent. 6s an o""icial critic, t!eO&#uds&an 'ill stud( t!e la', t!e procedure and practice in t!e %overn&ent, and &a$e appropriate reco&&endations "or a &ores(ste&atic operation o" t!e %overn&ental &ac!iner(, "ree "ro& #ureaucratic inconveniences. 6s a &o#ili5er, t!e O&#uds&an 'illsee to it t!at t!ere #e a stead( "lo' o" services to t!e individual consu&ers o" %overn&ent. 6nd as a 'atc!do%, t!e O&#uds&an 'ill

loo$ a"ter t!e %eneral, as 'ell as speci"ic, per"or&ances o" all %overn&ent o""icials and e&plo(ees so t!at t!e la' &a( not #ead&inistered 'it! an evil e(e or an uneven !and.9

On t!e ot!er !and, E. O. No. 1 enu&erates t!e o#=ectives o" t!e creation o" t!e rut! Co&&ission, t!us>

!'!CUTI(! ORD!R NO. 1

CR!ATING T! ILIIN! TRUT CO##ISSION O$ 2010

/!R!AS, 6rticle ?I, Section 1 o" t!e 1@9 Constitution o" t!e P!ilippines sole&nl( ens!rines t!e principle t!at a pu#lic o""ice is apu#lic trust and &andates t!at pu#lic o""icers and e&plo(ees, '!o are servants o" t!e people, &ust at all ti&es #e accounta#le tot!e latter, serve t!e& 'it! ut&ost responsi#ilit(, inte%rit(, lo(alt( and e""icienc(, act 'it! patriotis& and =ustice, and lead &odestlivesA

x x x

/!R!AS, t!ere is an ur%ent call "or t!e deter&ination o" t!e trut! re%ardin% certain reports o" lar%e scale %ra"t and corruption int!e %overn&ent and to put a closure to t!e& #( t!e "ilin% o" t!e appropriate cases a%ainst t!ose involved, i" 'arranted, and to deterot!ers "ro& co&&ittin% t!e evil, restore t!e peopleBs "ait! and con"idence in t!e 0overn&ent and in t!eir pu#lic servantsA

/!R!AS, t!ere is a need "or a separate #od( dedicated solel( to investi%atin% and "indin% out t!e trut! concernin% t!e reportedcases o" %ra"t and corruption durin% t!e previous ad&inistration, and '!ic! 'ill reco&&end t!e prosecution o" t!e o""enders andsecure =ustice "or allA

/!R!AS, 2oo$ III, C!apter 1, Section *1 o" Executive Order No. )), ot!er'ise $no'n as t!e Revised 6d&inistrative Code o"t!e P!ilippines, %ives t!e President t!e continuin% aut!orit( to reor%ani5e t!e O""ice o" t!e President.

NO/, T!R!$OR!, I, B!NIGNO SI#!ON A*UINO III, President o" t!e Repu#lic o" t!e P!ilippines, #( virtue o" t!e po'ers vested

in &e #( la', do !ere#( order>



x x x

6 co&parison #et'een t!e a"ore<uoted o#=ectives o" t!e O""ice o" t!e O&#uds&an and t!e rut! Co&&ission <uic$l( reveals t!att!e rut! Co&&ission is super"luous, #ecause it replicates or i&itates t!e 'or$ o" t!e O""ice o" t!e O&#uds&an. !e result is t!att!e rut! Co&&ission can even usurp t!e "unctions, duties, and responsi#ilities o" t!e O""ice o" t!e O&#uds&an. !at usurpation isnot a desira#le result, considerin% t!at t!e pu#lic "ait! and trust in t!e O""ice o" t!e O&#uds&an, as a constitutionall(-created o""ice

i&#ued 'it! speci"ic po'ers and duties to investi%ate and prosecute %ra"t and corruption, &a( #e eroded.

6CCORDIN0L, I vote to %rant t!e petitions.

LUCAS . B!RSA#IN 6ssociate Justice



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$oooe

1 Philippine Constitution %ssociation v. 1on. &nri8ue:, 0.R. Nos. 11*1, 11*19+, 11*988 and 11*@@@, 6u%ust 1, 1+,)* SCR6 8.

) 0.R. Nos. 11), 11*), 119, 111+, 11*+) and 11+), and 6.;. No. 1-)--SC, ;arc! 19, )1.

* ecretary of the 3epartment of ransportation and Communications v. 0alabot , 0.R. No. 1*@), e#ruar( )9, )),*9@ SCR6 1)@.

+ ;ondano v. Silvosa, 9 P!il. 1+*.

Record o" t!e Deli#eration o" t!e 1@8 Constitutional Co&&ission, R.C.C. No. +, Saturda(, Jul( )8, 1@8, pp. )8.

8 Id., at )8-)88.

9 Id., at )89.


S!ARAT! OINION

!R!, J.:

Executive Order No. 1 o" President 2eni%no S. 6<uino III Creatin% t!e P!ilippine rut! Co&&ission o" )1 violates 6rticle ?I,Section and Section 9 to%et!er 'it! Section 1*314 and 394 and related provisions in Para%rap!s 3)4, 3*4, 3+4, 34 and 384 o" t!esa&e Section 9, all o" t!e P!ilippine Constitution.

Particulari5ed, t!e presidential issuance o""ends a%ainst t!e independence o" t!e O""ice o" t!e O&#uds&anA de"ies t!e protectiona%ainst le%islation o" t!e &andates o" t!e O&#uds&anA and de"iles t!e #esto'al o" t!ese &andates #( t!eir reappoint&ent to t!elesser #od(. !e presidential creation, i" unc!ec$ed, 'ould, under t!e la(er o" %ood intentions, sull( t!e inte%rit( o" t!e or%anic act'!ic!, "or la' to rule, can #e touc!ed #( no one except t!e soverei%n people and onl( #( t!e 'a( and &anner t!e( !ave ordained.

!is is a de&ocratic ori%inal. !e soverei%n people can, o" course, c!oose to cut t!e essential ties, scatter t!e existin% entiret( andsla( t!e standin% s(ste&. !at did not !appen. !e soverei%n elected to sta( putA to sta( in t!e present ordinance. Ever(one &ust!onor t!e election. 6nd t!ere can #e no per&issi#le disre%ard, even in part, o" t!e "ree and deli#erate c!oice.

!e proposition is trul( si%ni"icant in t!is stud( o" t!e <uestioned executive order. !e countr( !as !ad a !istoric revolution t!at %avet!e people t!e c!ance to ri%!t t!e 'ron% t!at s!oved t!e nation on t!e ver%e. 6 ne' c!arter 'as 'ritten. 2ut t!e topic o" ExecutiveOrder No. 1, accounta#ilit( o" pu#lic o""icers, 'as re'ritten and as t!e sa&e constitutional !eadin%. !e in=unction t!at pu#lic o""iceis a pu#lic trust, includin% its &eanin% and i&port, 'as copied "ro& t!e ot!er'ise discarded docu&ent. 6nd !avin% adopted t!eo#=ective o" t!e old, t!e ne' la' assu&ed li$e'ise t!e &eans "or t!e end '!ic! are t!e anti-%ra"t institutions o" 19*,to 'it, t!especial %ra"t court na&ed Sandi%an#a(an and t!e O&#uds&an, t!e corruption investi%ator and prosecutor t!en $no'n as t!eanod#a(an #ot! o" '!ic! 'ere, in t!e 19* C!arter, ordered created #( le%islation.

!e transplant o" idea and &ec!anis&, t!e adoption o" t!e ends and t!e assu&ption o" t!e &eans o" 19* leads to t!e de"initeconclusion t!at t!e present Constitution is an a""ir&ance t!at, driven #( t!e #readt! o" corruption in pu#lic o""ice needin% endurin%solutions, t!ere &ust #e no less t!an a constitutionall( secured institution 'it! i&pre%na#le aut!orit( to co&#at corruption. !is ist!e O&#uds&an.

( vs. Sandi%an#a(an,1 c!ronicled t!e ori%ins o" t!e O&#uds&an. It 'as t!ere recounted t!at>

In t!e advent o" t!e 19* Constitution, t!e &e&#ers o" t!e Constitutional Convention sa' t!e need to constitutionali5e t!e o""ice o"t!e O&#uds&an, to %ive it political independence and ade<uate po'ers to en"orce its reco&&endations. !e 19* Constitution&andated t!e le%islature to create an o""ice o" t!e O&#uds&an to #e $no'n as anod#a(an. Its po'ers s!all not #e li&ited toreceivin% co&plaints and &a$in% reco&&endations, #ut s!all also include t!e "ilin% and prosecution o" cri&inal, civil orad&inistrative case #e"ore t!e appropriate #od( in case o" "ailure o" =ustice. Section 8, 6rticle ?III o" t!e 19* Constitution read>

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Section . !ere is !ere#( created t!e independent O""ice o" t!e O&#uds&an, co&posed o" t!e O&#uds&an to #e $no'n asanod#a(an, one overall Deput(, and at least one Deput( eac! "or Lu5on, 7isa(as and ;indanao. 6 separate Deput( "or t!e;ilitar( esta#lis!&ent &a( li$e'ise #e appointed. 3nderscorin% supplied.4

O" direct relevance and application to t!e case at #ar is t!e reason #e!ind t!e constitutionali5ation o" t!e O&#uds&an. 6%ain, 'ere"er to (* citin% Corte5, Redress o" 0rievance and t!e P!ilippine O&#uds&an 3anod#a(an4>

In t!is =urisdiction, several O&#uds&an-li$e a%encies 'ere esta#lis!ed #( past Presidents to serve as t!e peopleBs &ediu& "orairin% %rievances and see$in% redress a%ainst a#uses and &isconduct in t!e %overn&ent. !ese o""ices 'ere conceived 'it! t!evie' o" raisin% t!e standard in pu#lic service and ensurin% inte%rit( and e""icienc( in t!e %overn&ent. In ;a( 1, President Elpidiouirino created t!e Inte%rit( 2oard c!ar%ed 'it! receivin% co&plaints a%ainst pu#lic o""icials "or acts o" corruption, dereliction o" dut(and irre%ularit( in o""ice, and conductin% a t!orou%! investi%ation o" t!ese co&plaints. !e Inte%rit( 2oard 'as succeeded #(several ot!er a%encies '!ic! per"or&ed #asicall( t!e sa&e "unctions o" co&plaints-!andlin% and investi%ation. !ese 'ere t!ePresidential Co&plaints and 6ction Co&&ission under President Ra&on ;a%sa(sa(, t!e Presidential Co&&ittee on 6d&inistrationPer"or&ance E""icienc( under President Carlos 0arcia, t!e Presidential 6nti-0ra"t Co&&ittee under President Diosdado ;acapa%al,and t!e Presidential 6%enc( on Re"or& and 0overn&ent Operations and t!e O""ice o" t!e Citi5ens counselor, #ot! under Presidenterdinand ;arcos. It 'as o#served, !o'ever, t!at t!ese a%encies "ailed to reali5e t!eir o#=ective "or t!e( did not en=o( t!e politicalindependence necessar( "or t!e e""ective per"or&ance o" t!eir "unction as %overn&ent critic. urt!er&ore, t!eir po'ers extended tono &ore t!an "act-"indin% and reco&&endin%.

!e lac$ o" political independence o" t!ese presidential co&&issions, to '!ic! 'as attri#uted t!eir "ailure to reali5e t!eir o#=ectives,'as clari"ied durin% t!e deli#erations o" t!e Constitutional Co&&ission on '!at is no' 6rticle ?I o" t!e Constitution 'it!, as alread(o#served, t!e sa&e !eadin% used in 19*, /6ccounta#ilit( o" Pu#lic O""icials./ !e Co&&issioners also alluded to t!e unsuccess"ul

presidential atte&pts.

In !is sponsors!ip speec!, Co&&issioner Cola(co, 7ice-C!air&an o" t!e Co&&ittee on 6ccounta#ilit( o" Pu#lic O""icers,articulated>

In 1, "or instance, President uirino created t!e Inte%rit( 2oard in an atte&pt to "or&ali5e t!e procedure "or executive directionand control o" t!e #ureaucrac(. !is 2oard lasted "or six &ont!s. !en President ;a%sa(sa( too$ over t!e reins o" %overn&ent in1*, !e created t!e Presidential Co&plaints and 6ction Co&&ittee. !e pri&ar( purpose o" t!is Co&&ittee 'as to expedite actionon co&plaints received #( t!e O""ice o" t!e President a%ainst t!e &anner in '!ic! t!e o""icials o" t!e executive depart&ents ando""ices 'ere per"or&in% t!e duties entrusted to t!e& #( la', or a%ainst t!eir acts, conduct or #e!avior. xxx. 2ut a%ain politics ca&ein t!is o""ice did not last lon%. 'o &ont!s a"ter President ;a%sa(sa(Bs deat!, t!e o""ice 'as a#olis!ed.

Next, President 0arcia created !is o'n Presidential Co&&ittee on 6d&inistration, Per"or&ance and E""icienc( KPC6PEG. 6%ain t!iso""ice did not last lon% and 'as replaced #( t!e Presidential 6%enc( on Re"or&s and 0overn&ent Operations or P6R0O under t!ere%i&e o" President ;arcos.+

6s Co&&issioner Cola(co pointed out in t!e continuation o" !is sponsors!ip speec!> alt!ou%! t!ese pro%ra&s 'ere /%ood per se,/t!e succeedin% Presidents discarded t!e& as t!e inco&in% Presidents %enerall( tend to a#andon t!e policies and pro%ra&s o"t!eir predecessors a political #arrier to t!e eventual success o" t!ese #odies. :e concluded #( sa(in% t!at /KtG!e intention,t!ere"ore, o" our proposal is to constitutionali5e t!e o""ice so t!at it cannot #e touc!ed #( t!e Presidents as t!e( co&e and %o./

It &a( t!us #e said t!at t!e 1@9 Constitution co&pleted t!e O&#uds&anBs constitutionali5ation '!ic! 'as started in 19*. !epast Constitution &andated t!e creation #( t!e le%islature, t!e National Securit( 6sse&#l(, later t!e 2atasan% Pa&#ansa, o" ano""ice o" t!e O&#uds&an, '!ic! &andate, incidentall(, 'as %iven also "or t!e creation o" a special court, t!e Sandi%an#a(an. !epresent Constitution, '!ile allo'in% t!e continuation o" t!e Sandi%an#a(an and leavin% its "unctions and =urisdiction to provisions /#(la',/ itsel" created /t!e independent O""ice o" t!e O&#uds&an/ and itsel" deter&ined its po'ers, "unctions and duties. !eindependence o" t!e O&#uds&an is "urt!er underscored #( t!e constitutional orders t!at t!e O&#uds&an and !is Deputies s!all #eappointed #( t!e President "ro& a list prepared #( t!e Judicial and 2ar Council '!ic! appoint&ents s!all re<uire no con"ir&ationAt!at t!e O&#uds&an and !is Deputies s!all !ave t!e ran$ o" C!air&an and ;e&#ers, respectivel(, o" t!e ConstitutionalCo&&issions, and t!e( s!all receive t!e sa&e salar(, '!ic! s!all not #e decreased durin% t!eir ter& o" o""iceA t!at t!e O""ice o" t!eO&#uds&an s!all en=o( "iscal autono&( and its approved annual appropriations s!all #e auto&aticall( and re%ularl( releasedA and

t!at t!e O&#uds&an &a( onl( #e re&oved "ro& o""ice #( i&peac!&ent.

It is 'it! t!e %round and settin% =ust descri#ed t!at Executive Order No. 1 created t!e P!ilippine rut! Co&&ission. Naturall(, t!eOrder !ad to state t!at t!e P!ilippine rut! Co&&ission 'as created #( t!e President o" t!e Repu#lic o" t!e P!ilippines "urt!erdescri#in% t!e act as t!e exercise o" !is /continuin% aut!orit( to reor%ani5e t!e O""ice o" t!e President./ !e Order speci"ied t!at t!e#ud%et o" t!e Co&&ission s!all #e provided #( t!e O""ice o" t!e President and even its "urniture and e<uip&ent 'ill co&e "ro& t!eO""ice o" t!e President. ;ore si%ni"icantl(, a #asic pre&ise o" t!e creation is t!e PresidentBs #attlecr( durin% !is ca&pai%n "or t!ePresidenc( in t!e last elections /$un% 'alan% corrupt, 'alan% &a!irap,/ '!ic! is considered a /sole&n pled%e t!at i" elected, !e'ould end corruption and t!e evil it #reeds./ So &uc! so t!at t!e issuance states t!at /a co&pre!ensive "inal report s!all #epu#lis!ed upon directive o" t!e President/ upon '!ose directive li$e'ise, interi& reports &a( issue "ro& ti&e to ti&e.









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!e P!ilippine rut! Co&&ission anc!ored itsel" on t!e alread( constitutionali5ed principle t!at pu#lic o""ice is a pu#lic trust. Itadopted t!e alread( de"ined %oal to circle and contain corruption, an ene&( o" t!e %ood state alread( identi"ied 'a( #ac$ in 19*.!at Executive Order No. 1 did 'as to s!orten t!e si%!t and set it "ro& t!e incu&#entBs standpoint. !ere"ro&, it "ixed its tar%et at/reported cases o" %ra"t and corruption involvin% t!ird level pu#lic o""icers and !i%!er, t!eir co-principals, acco&plice andaccessories "ro& t!e private sector/ and "urt!er pinpointed t!e su#=ects as /t!ird level pu#lic o""icers durin% t!e previousad&inistration./ or t!is co&&ission, t!e P!ilippine rut! Co&&ission 'as presidentiall( e&po'ered as an /investi%ative #od(/ "ora t!orou%! "act "indin% investi%ation, t!erea"ter to>

%4 urn over "ro& ti&e to ti&e, "or expeditious prosecution, to t!e appropriate prosecutional aut!orities, #( &eans o" a special orinteri& report and reco&&endation, all evidence on corruption o" pu#lic o""icers and e&plo(ees and t!eir private sector co-principals, acco&plice or accessories, i" an(, '!en in t!e course o" its investi%ation t!e Co&&ission "inds t!at t!ere is reasona#le%round to #elieve t!at t!e( are lia#le "or %ra"t and corruption under pertinent applica#le la's.

:avin% t!us ta$en account o" t!e "ore%oin%, t!is 'riter ta$es t!e "ollo'in% position>

1. In li%!t o" t!e constitutionall( declared and a&pl( underscored independence o" t!e O""ice o" t!e O&#uds&an, '!ic! declarationis 'inno'ed 'isdo& "ro& t!e experienced in!erent de"ects o" presidential creations, so real and true t!at t!e O&#uds&anBsconstitutionali5ation 'as adopted to co&pletion even i" "ro& t!e c!arter o" an overt!ro'n re%i&e, Executive Order No. 1 cannotpass t!e present constitutional test. Executive Order No. 1 is unconstitutional precisel( #ecause it 'as issued #( t!e President. 6sarticulated #( Co&&issioner Cola(co o" t!e Co&&ission t!at resurrected t!e O&#uds&an, /our proposal is to constitutionali5e t!eo""ice so t!at it cannot #e touc!ed #( t!e Presidents as t!e( co&e and %o./ 6nd as t!is Court stated, repeatin% t!e o#servationre%ardin% t!e erst'!ile presidential anti-%ra"t co&&issions, suc! co&&issions "ailed to reali5e t!eir o#=ective #ecause t!e( did noten=o( t!e political independence necessar( "or t!e e""ective per"or&ance o" a %overn&ent critic.

Relevant too are t!e 'ords o" Co&&issioner Re%alado>

It is said !ere t!at t!e anod#a(an or t!e O&#uds&an 'ould #e a toot!less or a paper ti%er. !at is not necessaril( so. I" !e istoot!less, t!en let us %ive !i& a little &ore teet! #( &a$in% !i& independent o" t!e O""ice o" t!e President #ecause it is no' aconstitutional creation, so t!at t!e insidious tentacles o" politics, as !as al'a(s #een our pro#le&, even 'it! P6R0O, PC6PE andso "ort!, 'ill not deprive !i& o" t!e opportunit( to render service to Juan dela Cru5.8

7eril(, t!e P!ilippine rut! Co&&ission is a de"iance o" t!e constitutional 'isdo& t!at esta#lis!ed t!e politicall( independentO&#uds&an "or one o" its reasons "or #ein% is t!e ver( ca&pai%n #attlecr( o" t!e President /$un% 'alan% corrupt, 'alan% &a!irap./Not t!at t!ere is an(t!in% 'ron% 'it! t!e political slo%an. !at is 'ron% is t!e pursuit o" t!e pled%e outside t!e li&its o" t!eConstitution. !at is 'ron% is t!e creation #( t!e President !i&sel" o" an O&#uds&an-li$e #od( '!ile t!ere stands esta#lis!ed anO&#uds&an, constitutionall( created especiall( #ecause o" unsuccess"ul presidential antecedents, and t!us &ade independent"ro& presidential prero%ative.

). 6 si&ple co&parison 'ill s!o' t!at li$eness o" t!e P!ilippine rut! Co&&ission 'it! t!e O&#uds&an. No suc! li$eness isper&itted #( t!e Constitution.

It can easil( #e seen t!at t!e po'ers o" t!e rut! Co&&ission to> 14 identi"( and deter&ine t!e reported cases o" %ra"t andcorruption '!ic! it 'ill investi%ateA and )4 collect, receive, revie' and evaluate evidence related to or re%ardin% t!e cases o" lar%escale corruption '!ic! it !as c!osen to investi%ate,9 are t!e sa&e as t!e po'er o" t!e O&#uds&an to investi%ate an( ille%al, un=ust,i&proper, or ine""icient act or o&ission o" an( pu#lic o""icial, e&plo(ee, o""ice or a%enc(.@

!e aut!orit( o" t!e rut! Co&&ission to re<uire an( a%enc(, o""icial or e&plo(ee o" t!e Executive 2ranc! to produce docu&ents,#oo$s, records and ot!er papers &irrors t!e aut!orit( o" t!e O&#uds&an to direct concerned %overn&ent o""icials to "urnis! it 'it!copies o" docu&ents relatin% to contracts or transactions entered into #( t!e latterBs o""ice involvin% t!e dis#urse&ent or use o"pu#lic "unds or properties.1

Li$e'ise, t!e ri%!t to o#tain in"or&ation and docu&ents "ro& t!e Senate, t!e :ouse o" Representatives and t!e courts,11 %ranted #(Executive Order No. 1 to t!e rut! Co&&ission, is analo%ous to t!e license o" t!e O&#uds&an to re<uest an( %overn&ent a%enc(

"or assistance and in"or&ation and to exa&ine pertinent records and docu&ents.1)

6nd, t!e po'ers o" t!e rut! Co&&ission to invite or su#poena 'itnesses, ta$e t!eir testi&onies, ad&inister oat!s1* and i&posead&inistrative disciplinar( action "or re"usal to o#e( su#poena, ta$e oat! or %ive testi&on(1+are parallel to t!e po'ers to ad&inisteroat!s, issue su#poena, ta$e testi&on( and punis! "or conte&pt or su#=ect to ad&inistrative disciplinar( action an( o""icer ore&plo(ee '!o dela(s or re"uses to co&pl( 'it! a re"erral or directive %ranted #( Repu#lic 6ct 3R64 8991 to t!e O&#uds&an.

I" Executive Order No. 1 is allo'ed, t!ere 'ill #e a violation o" Section 9 o" 6rticle ?I, t!e essence o" '!ic! is t!at t!e "unction andpo'ers 3enu&erated in Section 1* o" 6rticle ?I4 con"erred on t!e O&#uds&an created under t!e 1@9 Constitution cannot #ere&oved or trans"erred #( la'. Section 9 states>



























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Section 9. !e existin% anod#a(an s!all !erea"ter #e $no'n as t!e O""ice o" t!e Special Prosecutor. It s!all continue to "unctionand exercise its po'ers as no' or !erea"ter &a( #e provided #( la', except t!ose con"erred on t!e O""ice o" t!e O&#uds&ancreated under t!is Constitution.

!ere is a sel"-evident reason "or t!e s!ield a%ainst le%islation provided #( Section 9 in protection o" t!e "unctions con"erred on t!eO""ice o" t!e O&#uds&an in Section 1*. !e O&#uds&an is a constitutional o""iceA its enu&erated "unctions are constitutionalpo'ers.

So 5ealousl( %uarded are t!e constitutional "unctions o" t!e O&#uds&an t!at t!e pro!i#ited assi%n&ent o" t!e con"erred po'ers'as &entioned in Section 9 in relation to t!e aut!orit( o" t!e anod#a(an '!ic!, '!ile rena&ed as O""ice o" t!e Special Prosecutor,re&ained constitutionall( reco%ni5ed and allo'ed to /continue to "unction and exercise its po'ers as no' or !erea"ter &a( #eprovided #( la'./

!e position o" t!e O""ice o" t!e Special Prosecutor, as a continuin% o""ice 'it! po'ers /as &a( #e provided #( la'/ vis-Y-vis t!eO&#uds&an created #( t!e 1@9 Constitution 'ould #e unraveled #( su#se<uent la' and =urisprudence. ;ost apt is aldivar vs.Sandi%an#a(an,18 '!ic! said>

nder t!e 1@9 Constitution, t!e O&#uds&an 3as distin%uis!ed "ro& t!e incu&#ent anod#a(an4 is c!ar%ed 'it! t!e dut( to>

Investi%ate on its o'n, or on co&plaint #( an( person, an( act or o&ission o" an( pu#lic o""icial, e&plo(ee, o""ice or a%enc(, '!ensuc! act or o&ission appears to #e ille%al, un=ust, i&proper, or ine""icient.

!e Constitution li$e'ise provides t!at>

!e existin% anod#a(an s!all !erea"ter #e $no'n as t!e O""ice o" t!e Special Prosecutor. It s!all continue to "unction and exerciseits po'ers as no' or !erea"ter &a( #e provided #( la', except t!ose con"erred on t!e O""ice o" t!e O&#uds&an created under t!isConstitution.

No' t!en, inas&uc! as t!e a"ore&entioned dut( is %iven to t!e O&#uds&an, t!e incu&#ent anod#a(an 3called Special Prosecutorunder t!e 1@9 Constitution and '!o is supposed to retain po'ers and duties NO 0I7EN to t!e O&#uds&an4 is clearl( 'it!outaut!orit( to conduct preli&inar( investi%ations and to direct t!e "ilin% o" cri&inal cases 'it! t!e Sandi%an#a(an, except upon orderso" t!e O&#uds&an. !is ri%!t to do so 'as lost e""ective e#ruar( ), 1@9. ro& t!at ti&e, !e !as #een divested o" suc! aut!orit(.

nder t!e present Constitution, t!e Special Prosecutor 3Raul 0on5ale54 is a &ere su#ordinate o" t!e anod#a(an 3O&#uds&an4and can investi%ate and prosecute cases onl( upon t!e latterBs aut!orit( or orders. !e Special Prosecutor cannot initiate t!eprosecution o" cases #ut can onl( conduct t!e sa&e i" instructed to do so #( t!e O&#uds&an. Even !is ori%inal po'er to issuesu#poena, '!ic! !e still clai&s under Section 13d4 o" PD 18*, is no' dee&ed trans"erred to t!e O&#uds&an, '!o &a(, !o'ever,

retain it in t!e Special Prosecutor in connection 'it! t!e cases !e is ordered to investi%ate. 3nderscorin% supplied.4

!e rulin% 'as clear> t!e dut( to investi%ate contained in Section 1*314 !avin% #een con"erred on t!e O""ice o" t!e O&#uds&an, le"tt!e t!en anod#a(an 'it!out aut!orit( to conduct preli&inar( investi%ation except upon orders o" t!e O&#uds&an. !e &essa%e'as de"inite. !e con"er&ent o" plenar( po'er upon t!e O&#uds&an to investi%ate /an( act or o&ission o" an( pu#lic o""icial xxx'!en suc! act or o&ission appears to #e ille%al, un=ust, i&proper or ine""icient/ cannot, a"ter 1@9 and '!ile t!e present Constitutionre&ains, #e s!ared even #( t!e #od( previousl( constitutionali5ed as vested 'it! suc! aut!orit(, even i" t!ere is suc! assi%n&ent/#( la'./

Indeed, t!e su#se<uent la' o#e(ed Section 9 as correctl( read in aldivar. !us, in Repu#lic 6ct No. 899, an 6ct Providin% or t!eunctional 6nd Structural Or%ani5ation o" t!e O""ice o" t!e O&#uds&an and or Ot!er Purposes, it 'as &ade clear in Section 113*4second sentence t!at /t!e O""ice o" t!e Special Prosecutor s!all #e an or%anic co&ponent o" t!e O""ice o" t!e O&#uds&an ands!all #e under t!e supervision and control o" t!e O&#uds&an./

Constitutional !istor(, speci"ic constitutional provisions, =urisprudence and current statute co&#ine to sa( t!at a"ter t!e rati"ication o"

t!e Constitution in 1@9, no #od( can #e %iven /#( la'/ an( o" t!e po'ers, "unctions and duties alread( con"erred on t!eO&#uds&an #( Section 1*, 6rticle ?I o" t!e Constitution. 6s alread( s!o'n, t!e rut! Co&&ission inso"ar as concerns t!e&entioned t!ird level o""icers or !i%!er o" t!e previous ad&inistration appropriates, not =ust one #ut virtuall(, all o" t!e po'ersconstitutionall( enu&erated "or t!e O&#uds&an. !e violation o" Section 9 in relation to Section 1* o" 6rticle ?I o" t!e Constitutionis evident.

*. No co&"ort is %iven to t!e respondents #( t!e "act t!at, as &entioned in :onasan II vs. Panel o" Investi%atin% Prosecutors o" t!eDepart&ent o" Justice,19 t!ere are /=urisprudential declarations/ t!at t!e O&#uds&an and t!e Depart&ent o" Justice 3DOJ4 !aveconcurrent =urisdiction. Concurrence o" =urisdiction does not allo' concurrent exercise o" suc! =urisdiction. Suc! is so t!at t!eO&#uds&an 6ct speci"icall( states in Section 1 t!at t!e O&#uds&an !as pri&ar( =urisdiction over cases co%ni5a#le #( t!eSandi%an#a(an precisel( t!e $ind o" cases covered #( t!e P!ilippine rut! Co&&ission and proceeds to de"ine /pri&ar(







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=urisdiction/ #( a%ain, speci"icall(, statin% t!at t!e O&#uds&an /&a( ta$e over, at an( sta%e, "ro& an( investi%ation o" suc! cases./!is pri&ar( =urisdiction 'as t!e pre&ise '!en a &a=orit( o" t!e Court in :onasan discussed t!e relevance o" O;2-DOJ JointCircular No. -1 3'!ic! provides t!at t!e preli&inar( investi%ation and prosecution o" o""enses co&&itted #( pu#lic o""icers inrelation to o""ice "iled 'it! t!e O""ice o" t!e Prosecutor s!all #e /under t!e control and supervision o" t!e O""ice o" t!e O&#uds&an/4in relation to Sections ) and +, Rule 11) o" t!e Revised Rules on Cri&inal Procedure on Preli&inar( Investi%ation, '!ic! concernst!e revie' o" t!e resolution o" t!e investi%atin% prosecutor in suc! cases. :onasan 'ould conclude t!at t!e aut!orit( o" t!e DOJprosecutors to conduct preli&inar( investi%ation o" o""enses 'it!in t!e ori%inal =urisdiction o" t!e Sandi%an#a(an is su#=ect to t!e<uali"ication>

xxx t!at in o""enses "allin% 'it!in t!e ori%inal =urisdiction o" t!e Sandi%an#a(an, t!e prosecutor s!all, a"ter t!eir investi%ation, trans&itt!e records and t!eir resolutions to t!e O&#uds&an or !is deput( "or appropriate action. 6lso, t!e prosecutor cannot dis&iss t!eco&plaint 'it!out prior 'ritten aut!orit( o" t!e O&#uds&an or !is deput(, nor can t!e prosecutor "ile an In"or&ation 'it! t!eSandi%an#a(an 'it!out #ein% deputi5ed #(, and 'it!out prior 'ritten aut!orit( o" t!e O&#uds&an, or !is deput(.1@ 3nderscorin% int!e ori%inal4

!ree separate opinions, t'o o" '!ic! 'ere dissents 'ere su#&itted in :onasan. Justice 7itu% said t!at t!e investi%atin% "iscal &ust#e particularl( deputi5ed #( t!e O&#uds&an and t!e investi%ation &ust #e conducted under t!e supervision and control o" t!eO&#uds&anA1 Justice nares-Santia%o discussed at len%t! t!e concept o" pri&ar( =urisdiction and too$ t!e position t!at>)

!ere t!e concurrent aut!orit( is vested in #ot! t!e Depart&ent o" Justice and t!e O""ice o" t!e O&#uds&an, t!e doctrine o"pri&ar( =urisdiction s!ould operate to restrain t!e Depart&ent o" Justice "ro& exercisin% its investi%ative aut!orit( i" t!e case 'illli$el( #e co%ni5a#le #( t!e Sandi%an#a(an. In suc! cases, t!e O""ice o" t!e O&#uds&an s!ould #e t!e proper a%enc( to conductt!e preli&inar( investi%ation over suc! an o""ense, it #ein% vested 'it! t!e speciali5ed co&petence and undou#ted pro#it( to

conduct t!e investi%ation.

Justice Sandoval-0utierre5 'as &ore strai%!t"or'ard>)1

!ile t!e DOJ !as a #road %eneral =urisdiction over cri&es "ound in t!e Revised Penal Code and special la's, !o'ever, t!is =urisdiction is not plenar( or total. !enever t!e Constitution or statute vests =urisdiction over t!e investi%ation and prosecution o"certain cri&es in an o""ice, t!e DOJ !as no =urisdiction over t!ose cri&es. In election o""enses, t!e Constitution vests t!e po'er toinvesti%ate and prosecute in t!e Co&&ission on Elections. In cri&es co&&itted #( pu#lic o""icers in relation to t!eir o""ice, t!eO&#uds&an is %iven #( #ot! t!e Constitution and t!e statute t!e sa&e po'er o" investi%ation and prosecution. !ese po'ers &a(not #e exercised #( t!e DOJ. xxx

6t t!e ver( least, t!ere"ore, t!e prosecutor, in Sandi%an#a(an cases &ust, a"ter investi%ation trans&it t!e records and t!eirresolution to t!e O&#uds&an '!ose prior 'ritten aut!orit( is needed #e"ore t!e prosecutor can dis&iss a co&plaint or "ile anin"or&ation in '!ic! latter instance, a deputi5ation o" t!e "iscal is additionall( needed. Even as t!is 'riter su#&its t!at t!e position o"t!e &inorit( in :onasan !e's "ar #etter to t!e Constitution since, as alread( o#served, t!e O&#uds&anBs aut!orit( excludes even

t!e anod#a(an '!ic! used to #e t!e constitutionall( reco%ni5ed !older o" t!e po'er, t!e "urt!er su#&ission is t!at t!e &a=orit(rulin% to t!e e""ect t!at t!e O&#uds&an is t!e supervisor o" t!e prosecutor '!o investi%ates %ra"t in !i%! places, nonet!elessille%ali5es t!e P!ilippine rut! Co&&ission.

RespondentBs &ain reliance is t!at

nli$e t!at o" t!e O;2 or DOJ '!ic! conducts "or&al investi%ation as a result o" cri&inal co&plaints "iled #e"ore t!e&, or uponreports, t!e rut! Co&&ission conducts "act-"indin% investi%ation preli&inar( to t!e "ilin% o" a co&plaint t!at could lead to a cri&inalinvesti%ation.))

I" t!e P!ilippine rut! Co&&ission 'ould, indeed, conduct onl( "act-"indin% investi%ations preli&inar( to a cri&inal investi%ation,t!en t!e "ore%oin% discussion 'ould trul( #e irrelevant. !e "act, !o'ever, is t!at t!e P!ilippine rut! Co&&ission is, to use t!eSolicitor 0eneralBs p!rase a /cri&inal investi%ator/ or one '!o conducts a preli&inar( investi%ation "or t!e prosecution o" a cri&inalcase.

Detailin% t!e po'ers and "unctions o" t!e P!ilippine rut! Co&&ission, Section ) o" Executive Order No. 1 sa(s t!at t!eCo&&ission s!all identi"( and deter&ine t!e reported cases o" suc! %ra"t and corruption '!ic! it 'illinvesti%ate 3Section )KaG4 andcollect, receive, revie' and evaluate evidence related to or re%ardin% t!e cases o" lar%e scale corruption '!ic! it !as c!osen toinvesti%ate 3Sec. )K#G4. 6s a"orenoted, t!e P!ilippine rut! Co&&issionBs po'er to investi%ate %ra"t and corruption is no di""erent"ro& t!e constitutional po'er o" t!e O&#uds&an to investi%ate an( act o" an( pu#lic o""icial '!en suc! act appears to #e ille%al,un=ust, i&proper, or ine""icient. !e P!ilippine rut! Co&&ission cannot avoid t!e co&parison #( di""erentiatin% /"or&alinvesti%ation/ or /cri&inal investi%ation/ '!ic! it sa(s is conducted #( t!e O&#uds&an or t!e DOJ, "ro& t!e /"act-"indin%investi%ation/ o" t!e P!ilippine rut! Co&&ission. Let us %o #ac$ to aldivar. !ere it 'as as &uc! as stated t!at t!e po'er toinvesti%ate &entioned in Section 1*314 o" t!e 1@9 Constitution is t!e aut!orit( to conduct preli&inar( investi%ation '!ic! aut!orit('as re&oved "ro& t!e ando#a(an called Special Prosecutor '!en it 'as %iven to t!e O&#uds&an. !is e<uivalence 'as a""ir&edin 6cop vs. O""ice o" t!e O&#uds&an,)* '!ere it 'as stated>















8/13/2019 G.R. No. 192935 December 7, 2010


In vie' o" t!e "ore%oin%, it is evident t!at t!e petitioners !ave not #orne out an( distinction #et'een /t!e dut( to investi%ate/ and /t!epo'er to conduct preli&inar( investi%ationsA/ neit!er !ave t!e petitioners esta#lis!ed t!at t!e latter re&ains 'it! t!e anod#a(an,no' t!e Special Prosecutor. !us, t!is Court can onl( re=ect t!e petitionersB "irst proposition.

Suc! esta#lis!ed de"inition o" /investi%ation/ o" %ra"t and corruption cases, especiall( "or t!e purpose o" deter&inin% t!e aut!orit( o"one #od( in relation to anot!er, '!ic! is exactl( one o" t!e issues in t!is case, &ust #e read into Executive Order No. 1. No sourcecitation is needed "or t!e %enerall( accepted rule t!at t!e 'ords used in a le%al docu&ent, indeed one '!ic! is intended to #e a la',!as t!e &eanin% t!at is esta#lis!ed at t!e ti&e o" t!e la'Bs pro&ul%ation. /Investi%ation/ in Section 13a4 o" Executive Order No. 1 is

t!e sa&e as preli&inar( investi%ation and its conduct #( t!e rut! Co&&ission cannot #e independent o" t!e O&#uds&an. !erut! Co&&ission cannot exist outside t!e O&#uds&an. Executive Order No. 1 so places t!e rut! Co&&ission and, is, t!ere"oreunconstitutional.

Indeed, Executive Order No. 1 itsel" pronounces t!at '!at it e&po'ers t!e P!ilippine rut! Co&&ission 'it! is t!e aut!orit( o"preli&inar( investi%ation. Section )3%4 o" t!e executive order states>

urn over "ro& ti&e to ti&e, "or expeditious prosecution, to t!e appropriate prosecutional aut!orities, #( &eans o" a special orinteri& report and reco&&endation, all evidence on corruption o" pu#lic o""icers and e&plo(ees and t!eir private sector co-principals, acco&plice or accessories, i" an(, '!en in t!e course o" its investi%ation t!e Co&&ission "inds t!at t!ere is reasona#le%round to #elieve t!at t!e( are lia#le "or %ra"t and corruption underpertinent applica#le la's. 3nderscorin% supplied.4

Investi%ation to "ind reasona#le %round to #elieve /t!at t!e( are lia#le "or %ra"t and corruption under applica#le la's/ is preli&inar(investi%ation as de"ined in Rule 11), Section 1 o" t!e Rules o" Cri&inal Procedure, '!ic! states>

Section 1. Preli&inar( investi%ation de"inedA '!en re<uired. Preli&inar( investi%ation is an in<uir( or proceedin% to deter&ine'!et!er t!ere is su""icient %round to en%ender a 'ell-"ounded #elie" t!at a cri&e !as #een co&&itted and t!e respondent ispro#a#l( %uilt( t!ereo", and s!ould #e !eld "or trial.

;oreover, as clearl( stated in Section )3%4 o" Executive Order No. 1, t!e P!ilippine rut! Co&&ission 'ill #e &ore po'er"ul t!an t!eDOJ prosecutors '!o are re<uired, a"ter t!eir investi%ation, to trans&it t!e records and t!eir resolution "or appropriate action #( t!eO&#uds&an or !is deput(, '!ic! action is ta$en onl( a"ter a revie' #( t!e O&#uds&an. Section + o" Rule 11) states t!at>

x x x x

No co&plaint or in"or&ation &a( #e "iled or dis&issed #( an investi%atin% prosecutor 'it!out t!e prior 'ritten aut!orit( or approval o"t!e provincial or cit( prosecutor or c!ie" state prosecutor or t!e O&#uds&an or !is deput(.

!ere t!e investi%atin% prosecutor reco&&ends t!e dis&issal o" t!e co&plaint #ut !is reco&&endation is disapproved #( t!e

provincial or cit( prosecutor or c!ie" state prosecutor or t!e O&#uds&an or !is deput( on t!e %round t!at a pro#a#le cause exists,t!e latter &a(, #( !i&sel", "ile t!e in"or&ation a%ainst t!e respondent, or direct anot!er assistant prosecutor or state prosecutor to doso 'it!out conductin% anot!er preli&inar( investi%ation.

I" upon petition #( a proper part( under suc! rules as t!e Depart&ent o" Justice &a( prescri#e or &otu proprio, t!e Secretar( o"Justice reverses or &odi"ies t!e resolution o" t!e provincial or cit( prosecutor or c!ie" state prosecutor, !e s!all direct t!e prosecutorconcerned eit!er to "ile t!e correspondin% in"or&ation 'it!out conductin% anot!er preli&inar( investi%ation, or to dis&iss or &ove "ordis&issal o" t!e co&plaint or in"or&ation 'it! notice to t!e parties. !e sa&e Rule s!all appl( in preli&inar( investi%ationsconducted #( t!e o""icers o" t!e O""ice o" t!e O&#uds&an.

In ot!er 'ords, under existin% Rule '!ic! "ollo's t!e statutoril( de"ined pri&ar( =urisdiction o" t!e O&#uds&an in o#eisance to t!econstitutional con"er&ent o" aut!orit(, t!e O&#uds&an revie's and &a( reverse or &odi"( t!e resolution o" t!e investi%atin%prosecutor. In t!e case o" t!e P!ilippine rut! Co&&ission, t!e O&#uds&an not onl( s!ares its constitutional po'er #ut, over anda#ove t!is, it is divested o" an( and all investi%ator( po'er #ecause t!e P!ilippine rut! Co&&issionBs "indin% o" /reasona#le%round/ is "inal and unrevie'a#le and is turned over to t!e O&#uds&an solel( "or /expeditious prosecution./

+. !ere is an atte&pt #( t!e Solicitor 0eneral to read around t!e explicitness o" Section )3%4 o" Executive Order No. 1. !us,s$irtin% t!e 'ords /"or expeditious prosecution/ and t!eir o#vious &eanin%s as =ust discussed, t!e respondents ar%ue t!at>

!e rut! Co&&ission 'ill su#&it its reco&&endation to, a&on% ot!ers, t!e O;2 and to t!e /appropriate prosecutorial aut!orities/'!ic! t!en s!all exercise t!eir constitutional and statutor( po'ers and =urisdiction to evaluate t!e reco&&endation or endorse&entso" t!e rut! Co&&ission. !ile "indin%s o" t!e rut! Co&&ission are reco&&endator(, t!e "acts %at!ered #( t!e Co&&ission 'illdecisivel( aid prosecutorial #odies in supportin% possi#le indict&ents "or violations o" anti-%ra"t la's. ;oreover, t!e polic(reco&&endations to address corruption in %overn&ent 'ill #e invalua#le to t!e ExecutiveBs %oal to reali5e its anti-corruptionpolicies.)+



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x x x x

!e Reports o" t!e rut! Co&&ission 'ill serve as #ases "or possi#le prosecutions and as sources o" polic( options xxx.

act %at!erin% as #asis "or preli&inar( investi%ation and not as preli&inar( investi%ation itsel" and #asis "or prosecution, is,see&in%l(, t!e "unction respondents 'ant to attri#ute to t!e P!ilippine rut! Co&&ission to escape t!e o#vious unconstitutionalcon"er&ent o" O&#uds&an po'er. !at is no route out o" t!e #ind. act %at!erin%, "act "indin%, indeed trut! "indin% is, as &uc! as

investi%ation as preli&inar( investi%ation, also constitutionall( con"erred on t!e O&#uds&an. Section 1) o" 6rticle ?I states>

Section 1). !e O&#uds&an and !is Deputies, as protectors o" t!e people, s!all act pro&ptl( on co&plaints "iled in an( "or& or&anner a%ainst pu#lic o""icials or e&plo(ees o" t!e %overn&ent, or an( su#division, a%enc( or instru&entalit( t!ereo", includin%%overn&ent-o'ned or controlled corporations, and s!all, in appropriate cases, noti"( t!e co&plainants o" t!e action ta$en and t!eresult t!ereo".

!e O&#uds&an on its o'n investi%ates an( act or o&ission o" an( pu#lic o""icial '!en suc! act or o&ission appears to #e ille%al3Section 1*314, 6rticle ?I o" t!e Constitution4. !e po'er is #road enou%!, i" not speciall( intended, to cover "act-"indin% o" t!e tenort!at 'as %iven to t!e P!ilippine rut! Co&&ission #( Executive Order No. 1 '!ic! is>

#4 Collect, receive, revie' and evaluate evidence related to or re%ardin% t!e cases o" lar%e scale corruption '!ic! it !as c!osen toinvesti%ate xxx.

6nd, t!e o#=ective o" t!e P!ilippine rut! Co&&ission pointed to #( t!e Solicitor 0eneral '!ic! is to &a$e "indin%s "or /polic(

reco&&endations to address corruption in %overn&ent/ and to serve as /sources o" polic( options/ is exactl( t!e "unction descri#ed"or and ascri#ed to t!e O&#uds&an in Section 1*394, 6rt. ?I o" t!e Constitution>

394 Deter&ine t!e causes o" ine""icienc(, red tape, &is&ana%e&ent, "raud, and corruption in t!e 0overn&ent and &a$ereco&&endations "or t!eir eli&ination and t!e o#servance o" !i%! standards o" et!ics and e""icienc(.

;oreover, as at t!e outset alread( pointed out, t!e po'er o" t!e P!ilippine rut! Co&&ission to o#tain in"or&ation and docu&ents"ro& t!e Con%ress and t!e Judiciar( KSection )3c4 and 3d4 o" Executive Order No. 1G is a reproduction o" t!e O&#uds&an po'ersprovided "or in Section 1* 3+4 and 34, 6rticle ?I o" t!e Constitution.

7irtuall(, anot!er O&#uds&an is created #( Executive Order No. 1. !at cannot #e per&itted as lon% as t!e 1@9 Constitutionre&ains as t!e "unda&ental la'.

. o excuse t!e existence o" t!e presidentiall( created, &anned, "unded and e<uipped rut! Co&&ission side-#(-side 'it! t!e

Constitutionall( created and e&po'ered O&#uds&an, t!e Solicitor 0eneral provides t!e ver( ar%u&ent a%ainst t!e proposition. Inpa%e 9 o" !is &e&orandu&, t!e Solicitor 0eneral sa(s t!at>

!e concerned a%encies need not 'ait until t!e co&pletion o" t!e investi%ation o" t!e rut! Co&&ission #e"ore t!e( can proceed'it! t!eir o'n investi%ative and prosecutorial "unctions. ;oreover, t!e rut! Co&&ission 'ill, "ro& ti&e to ti&e, pu#lis! specialinteri& reports and reco&&endations, over and a#ove t!e co&pre!ensive "inal report. I" an(, t!e preli&inar( reports &a( aid t!econcerned a%encies in t!eir investi%ations and eventuall(, in t!e "ilin% o" a co&plaint or in"or&ation. 3nderscorin% supplied4

6pparentl(, t!e state&ent proceeds "ro& t!e position t!at /t!e po'er o" t!e O;2 to investi%ate o""enses involvin% pu#lic o""icers ore&plo(ees is not exclusive #ut is concurrent 'it! ot!er si&ilarl( aut!ori5ed a%encies o" t!e %overn&ent./) it!out cuttin% o"" "ro&t!e discussions t!at t!e concurrence o" =urisdiction o" t!e O&#uds&an 'it! an( ot!er #od( s!ould #e read to &ean t!at at t!e ver(least an( "indin% #( an( ot!er #od( is revie'a#le #( t!e O&#uds&an and t!at in "ull o#edience to t!e Constitution, %ra"t casesa%ainst !i%! o""icials s!ould #e investi%ated alone #( or under t!e ae%is o" t!e O&#uds&an, it need onl( #e repeated t!atconcurrence o" =urisdiction does not allo' concurrent exercise o" =urisdiction. !is is t!e reason '!( 'e !ave t!e rule t!at excludesan( ot!er concurrentl( aut!ori5ed #od( "ro& t!e #od( "irst exercisin% =urisdiction. !is is t!e reason '!( "oru& s!oppin% is&alpractice o" la'.

!e trut! is, in t!e intensel( political i" not partisan &atter o" /reports o" %ra"t and corruption xxx co&&itted #( pu#lic o""icers xxx, i"an(, durin% t!e previous ad&inistration,/ t!ere can onl( #e one "indin% o" trut!. 6n( addition to t!at one "indin% 'ould result in dinand con"usion, a #a#el not needed #( a nation tr(in% to #e one. 6nd t!is is '!( all t!at "all under t!e topic accounta#ilit( o" pu#lico""icers !ave #een particulari5ed and %at!ered under one aut!orit( - !e O&#uds&an. !is 'as done #( t!e Constitution. It cannot#e undone as t!e nation no' stands and re&ains.

:EREORE, I vote "or t!e %rant o" t!e petition and t!e declaration o" Executive Order No. 1 as unconstitutional.




8/13/2019 G.R. No. 192935 December 7, 2010


&OS! ORTUGAL !R! 6ssociate Justice

$oooe

1 0.R. No. 18-9, *+ SCR6 81, 881.

) Id. at 88+-88.

* Id. at 88-881.

+ Records o" t!e Constitutional Co&&ission 7ol. II, )8 Jul( 1@8, p. )89.

Sec. , Sec. 1, Sec. 1+ and Sec. ) o" 6rticle ?I, 1@9 Constitution.

8 Records o" t!e Constitutional Co&&ission, 7ol. II, )8 Jul( 1@8, p. )8.

9

Section )3a4 and 3#4, respectivel(, E.O. No. 1, dated * Jul( )1.

@ 6rticle ?I, Section 1*314, 1@9 Constitution.

Section )3#4, E.O. No. 1, supra note 9.

1 6rticle ?I, Section 1*3+4, 1@9 Constitution.

11 Section )3c4 and 3d4, E.O. No. 1, supra.

1) 6rticle ?I, Section 1*34, 1@9 Constitution.

1* Section )3e4, E.O. No. 1, supra.

1+ Id., Section .

1 !e O&#uds&an 6ct o" 1@, Section 13@4 and 34 and Section )83+4.

18 0.R. Nos. L-988-99, )9 6pril 1@@, 18 SCR6 @+*, @+8-@+9.

19 0.R. No. 19+9, 1* 6pril )+, +)9 SCR6 +8.

1@ Id. at 9+.

1 Id. at 99-9@.

) Id. at @8.

)1 Id. at ).

)) ;e&orandu& "or Respondent, p. 9.

)* 0.R. No. 1)+)), )+@ SCR6 88, 9.

)+ ;e&orandu& "or Respondents, pp. 9*-9+.

http://www.lawphil.net/judjuris/juri2010/dec2010/gr_192935_2010.html#rnt1p

























































8/13/2019 G.R. No. 192935 December 7, 2010


) ;e&orandu& "or Respondents, p. @).


DISS!NTING OINION

CARIO, J.:

!e t'o petitions #e"ore t!is Court see$ to declare void Executive Order No. 1, Creating the Philippine ruth Commission of>B<B 3EO 14, "or #ein% unconstitutional.

In 0.R. No. 1)*, petitioner Louis C. 2irao%o 32irao%o4, as a ilipino citi5en and as a taxpa(er, "iled a petition under Rule 8 "orpro!i#ition and in=unction. 2irao%o pra(s "or t!e issuance o" a 'rit o" preli&inar( in=unction and te&porar( restrainin% order todeclare EO 1 unconstitutional, and to direct t!e P!ilippine rut! Co&&ission 3rut! Co&&ission4 to desist "ro& proceedin% undert!e aut!orit( o" EO 1.

In 0.R. No. 1**8, petitioners Edcel C. La%&an, Rodol"o 2. 6l#ano, Jr., Si&eon 6. Datu&anon%, and Orlando 2. ua, Sr.3La%&an, et al.4, as ;e&#ers o" t!e :ouse o" Representatives, "iled a petition under Rule 8 "or certiorari and pro!i#ition.Petitioners La%&an, et al. pra( "or t!e issuance o" a te&porar( restrainin% order or 'rit o" preli&inar( in=unction to declare void EO 1"or #ein% unconstitutional.

'he (owers of the (resident

Petitioners 2irao%o and La%&an, et al. 3collectivel( petitioners4 assail t!e creation o" t!e rut! Co&&ission. !e( clai& t!atPresident 2eni%no S. 6<uino III 3President 6<uino4 !as no po'er to create t!e Co&&ission. PetitionersB o#=ections are &ere sound#ites, devoid o" sound le%al reasonin%.

On * Jul( )1, President 6<uino issued EO 1 pursuant to Section *1, C!apter 1, itle III, 2oo$ III o" Executive Order No. ))3EO ))4.1 Section *1 reads>

Section *1. Continuing %uthority of the President to 'eorgani:e his !ffice. !e President, su#=ect to t!e polic( in t!e ExecutiveO""ice and in order to ac!ieve si&plicit(, econo&( and e""icienc(, s!all !ave continuin% aut!orit( to reor%ani5e t!e ad&inistrativestructure o" t!e O""ice o" t!e President. or t!is purpose, !e &a( ta$e an( o" t!e "ollo'in% actions>

314 Rercre =e er+ or6++o o =e Oce o =e re-e ro:er, c-6 =e mme-+e Oce,=e re-e+ S:ec+ A+>A-er S;em +- =e Commo S+ S::or S;em, b; +bo=6,coo-+6 or mer66 =ereo or r+err6 co rom oe o +o=er A


3*4 rans"er an( a%enc( under t!e O""ice o" t!e President to an( ot!er depart&ent or a%enc( as 'ell as trans"er a%enciesto t!e O""ice o" t!e President "ro& ot!er depart&ents or a%encies. 3E&p!asis supplied4

!e la' expressl( %rants t!e President t!e /continuin% aut!orit( to reor%ani5e t!e ad&inistrative structure o" t!e O""ice o" t!ePresident,/ '!ic! necessaril( includes t!e po'er to create o""ices 'it!in t!e O""ice o" t!e President Proper. !e po'er o" t!ePresident to reor%ani5e t!e O""ice o" t!e President Proper cannot #e disputed as t!is po'er is expressl( %ranted to t!e President #(la'. Pursuant to t!is po'er to reor%ani5e, all Presidents under t!e 1@9 Constitution !ave created, a#olis!ed or &er%ed o""ices orunits 'it!in t!e O""ice o" t!e President Proper, EO 1 #ein% t!e &ost recent instance. !is Court explained t!e rationale #e!ind t!ePresidentBs continuin% aut!orit( to reor%ani5e t!e O""ice o" t!e President Proper in t!is 'a(>

x x x !e la' %rants t!e President t!is po'er in reco%nition o" t!e recurrin% need o" ever( President to reor%ani5e !is o""ice /toac!ieve si&plicit(, econo&( and e""icienc(./ !e O""ice o" t!e President is t!e nerve center o" t!e Executive 2ranc!. o re&aine""ective and e""icient, t!e O""ice o" t!e President &ust #e capa#le o" #ein% s!aped and res!aped #( t!e President in t!e &anner !edee&s "it to carr( out !is directives and policies. 6"ter all, t!e O""ice o" t!e President is t!e co&&and post o" t!e President. !is ist!e rationale #e!ind t!e PresidentBs continuin% aut!orit( to reor%ani5e t!e ad&inistrative structure o" t!e O""ice o" t!ePresident.) 3E&p!asis supplied4

he Power o &+ecute 4aithfully the (aws


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8/13/2019 G.R. No. 192935 December 7, 2010


Section 1, 6rticle 7I o" t!e 1@9 Constitution states t!at /KtG!e executive po'er is vested in t!e President o" t!e P!ilippines./ Section19, 6rticle 7II o" t!e 1@9 Constitution states t!at /KtG!e President s!all !ave control o" all t!e executive depart&ents, #ureaus ando""ices. e =+ ere =+ =e +4 be +=; e<ece-./* 2e"ore !e enters o""ice, t!e President ta$es t!e "ollo'in% oat!prescri#ed in Section , 6rticle 7II o" t!e 1@9 Constitution> /I do sole&nl( s'ear t!at I 'ill "ait!"ull( and conscientiousl( "ul"ill &(duties as President o" t!e P!ilippines, preserve and de"end its Constitution, e<ece +4, do =ustice to ever( &an, andconsecrate &(sel" to t!e service o" t!e Nation. So !elp &e 0od./+

Executive po'er is vested exclusivel( in t!e President. Neit!er t!e Judiciar( nor t!e Le%islature can execute t!e la'. 6s t!e

Executive, t!e President is &andated not onl( to execute t!e la', #ut also to execute "ait!"ull( t!e la'.

o execute faithfully t!e la', t!e President &ust "irst $no' t!e "acts t!at =usti"( or re<uire t!e execution o" t!e la'. o $no' t!e"acts, t!e President &a( !ave to conduct "act-"indin% investi%ations. Ot!er'ise, 'it!out $no'in% t!e "acts, t!e President &a( #e#lindl( or ne%li%entl(, and not "ait!"ull( and intelli%entl(, executin% t!e la'.

Due to ti&e and p!(sical constraints, t!e President cannot o#viousl( conduct #( !i&sel" t!e "act-"indin% investi%ations. !ePresident 'ill !ave to dele%ate t!e "act-"indin% "unction to one or &ore su#ordinates. !us, t!e President &a( appoint a sin%le "act-"indin% investi%ator, or a colle%ial #od( or co&&ittee. In reco%ni5in% t!at t!e President !as t!e po'er to appoint an investi%ator toin<uire into "acts, t!is Court !eld>

;oreover, petitioner cannot clai& t!at !is investi%ation as actin% %eneral &ana%er is "or t!e purpose o" re&ovin% !i& as suc! "or!avin% alread( #een relieved, t!e o#vious purpose o" t!e investi%ation is &erel( to %at!er "acts t!at &a( aid t!e President in "indin%out '!( t!e N6RIC "ailed to attain its o#=ectives, particularl( in t!e sta#ili5ation o" t!e prices o" rice and corn. :is investi%ation is,t!ere"ore, not punitive, #ut &erel( an in<uir( into &atters '!ic! t!e President is entitled to $no' so t!at !e can #e properl( %uided in

t!e per"or&ance o" !is duties relative to t!e execution and en"orce&ent o" t!e la's o" t!e land. In t!is sense, t!e President &a(aut!ori5e t!e appoint&ent o" an investi%ator o" petitioner Rodri%ue5 in !is capacit( as actin% %eneral &ana%er even i" under t!e la't!e aut!orit( to appoint !i& and discipline !i& #elon%s to t!e N6RIC 2oard o" Directors. !e petition "or pro!i#ition, t!ere"ore, !asno &erit. 32old"acin% and italici5ation supplied4

he Power o 4ind 4acts

!e po'er to "ind "acts, or to conduct "act-"indin% investi%ations, is necessar( and proper, and t!us inherent in t!e PresidentBspo'er to execute "ait!"ull( t!e la'. Indeed, t!e po'er to "ind "acts is in!erent not onl( in Executive po'er, #ut also in Le%islative as'ell as Judicial po'er. !e Le%islature cannot sensi#l( enact a la' 'it!out $no'in% t!e "actual &ilieu upon '!ic! t!e la' is tooperate. Li$e'ise, t!e courts cannot render =ustice 'it!out $no'in% t!e "acts o" t!e case i" t!e issue is not purel( le%al. PetitionerLa%&an ad&itted t!is durin% t!e oral ar%u&ents>

6SSOCI6E JSICE C6RPIO>

x x x !e po'er to "act-"ind is in!erent in t!e le%islature, correct I &ean, #e"ore (ou can pass a la', (ou &ust deter&ine t!e "acts.So, itBs essential t!at (ou !ave to deter&ine t!e "acts to pass a la', and t!ere"ore, t!e po'er to "act-"ind is in!erent in le%islativepo'er, correct

CON0RESS;6N L60;6N>

es, our :onor.


6nd it is also in!erent in =udicial po'er, 'e &ust $no' t!e "acts to render a decision, correct

CON0RESS;6N L60;6N>

es, our :onor.


6nd it is also in!erent in executive po'er t!at Kt!eG President !as to $no' t!e "acts so t!at !e can "ait!"ull( execute t!e la's,correct

CON0RESS;6N L60;6N>










8/13/2019 G.R. No. 192935 December 7, 2010


es, our :onor, in t!at context 3interrupted4.


So 3interrupted4

CON0RESS;6N L60;6N>

our :onor, in t!at context, t!e le%islature !as t!e in!erent po'er to &a$e "actual in<uiries in aid o" le%islation. In t!e case o" t!eSupre&e Court and t!e ot!er courts, t!e po'er to in<uire into "acts KisG in aid o" ad=udication. 6nd in t!e case o" t!e O""ice o" t!ePresident, or t!e President !i&sel" K!as t!e po'erG to in<uire into t!e "acts in order to execute t!e la's.8

2ein% an in!erent po'er, t!ere is no need to con"er explicitl( on t!e President, in t!e Constitution or in t!e statutes, t!e po'er to"ind "acts. &vangelista v. -arencio9 underscored t!e i&portance o" t!e po'er to "ind "acts or to investi%ate>

It !as #een essa(ed t!at t!e li"e#lood o" t!e ad&inistrative process is t!e "lo' o" "actKsG, t!e %at!erin%, t!e or%ani5ation and t!eanal(sis o" evidence. Ie6+o +re e or + +-mr+e co, o o; or re m+6, +-E-c+o, +-ce6, b +o or :roec6, or :er6 +- -rec6, or -eerm6 6eer+ :oc;, or recomme-6e6+o, +- or :r:oe o more :ecc =+ m+6 obcre +re+ o - o 4=+ +;=6 =o- be-oe. 6n ad&inistrative a%enc( &a( #e aut!ori5ed to &a$e investi%ations, not onl( in proceedin%s o" a le%islative or =udicial nature,#ut also in proceedin%s '!ose sole purpose is to o#tain in"or&ation upon '!ic! "uture action o" a le%islative or =udicial nature &a(#e ta$en and &a( re<uire t!e attendance o" 'itnesses in proceedin%s o" a purel( investi%ator( nature. It &a( conduct %eneral

in<uiries into evils callin% "or correction, and to report "indin%s to appropriate #odies and &a$e reco&&endations "or actions.3E&p!asis supplied4

he Power o Create % Public !ffice

!e creation o" a pu#lic o""ice &ust #e distin%uis!ed "ro& t!e creation o" an ad hoc "act-"indin% pu#lic #od(.

!e po'er to create a pu#lic o""ice is undenia#l( a le%islative po'er. !ere are t'o 'a(s #( '!ic! a pu#lic o""ice is created> 314 #(la', or 3)4 #( dele%ation o" la', as "ound in t!e PresidentBs aut!orit( to reor%ani5e !is O""ice. !e President as t!e Executive doesnot in!erentl( possess t!e po'er to reor%ani5e t!e Executive #ranc!. :o'ever, t!e Le%islature !as dele%ated to t!e President t!epo'er to create pu#lic o""ices 'it!in t!e O""ice o" t!e President Proper, as provided in Section *1314, C!apter 1, itle III, 2oo$ III o"EO )).

!us, t!e President can create t!e rut! Co&&ission as a pu#lic o""ice in !is O""ice pursuant to !is po'er to reor%ani5e t!e O""ice

o" t!e President Proper .@

In suc! a case, t!e President is exercisin% !is dele%ated po'er to create a pu#lic o""ice 'it!in t!e O""ice o"t!e President Proper. !ere is no dispute t!at t!e President possesses t!is dele%ated po'er.

In t!e alternative, t!e President can also create t!e rut! Co&&ission as an ad hoc #od( to conduct a "act-"indin% investi%ationpursuant to t!e PresidentBs in!erent po'er to "ind "acts as #asis to execute "ait!"ull( t!e la'. !e creation o" suc! ad hoc "act-"indin% #od( is indisputa#l( ece+r; +- :ro:er "or t!e President to execute "ait!"ull( t!e la'. In suc! a case, &e&#ers o" t!erut! Co&&ission &a( #e appointed as Special 6ssistants or 6dvisers o" t!e President, and t!en assi%ned to conduct a "act-"indin% investi%ation. !e President can appoint as &an( Special 6ssistants or 6dvisers as !e &a( need.1 !ere is no pu#lic o""icecreated and &e&#ers o" t!e rut! Co&&ission are incu&#ents alread( !oldin% pu#lic o""ice in %overn&ent. !ese incu&#ents are%iven an assi%n&ent #( t!e President to #e &e&#ers o" t!e rut! Co&&ission. !us, t!e rut! Co&&ission is &erel( anadhoc #od( assi%ned to conduct a "act-"indin% investi%ation.

!e creation o" ad hoc "act-"indin% #odies is a routine occurrence in t!e Executive and even in t!e Judicial #ranc!es o" %overn&ent.!enever t!ere is a co&plaint a%ainst a %overn&ent o""icial or e&plo(ee, t!e Depart&ent Secretar(, !ead o" a%enc( or !ead o" alocal %overn&ent unit usuall( creates a "act-"indin% #od( '!ose &e&#ers are incu&#ent o""icials in t!e sa&e depart&ent, a%enc( orlocal %overn&ent unit.11 !is is also true in t!e Judiciar(, '!ere t!is Court routinel( appoints a "act-"indin% investi%ator, dra'n "ro&

incu&#ent Jud%es or Justices 3or even retired Jud%es or Justices '!o are appointed consultants in t!e O""ice o" t!e Court 6d&inistrator4, to investi%ate co&plaints a%ainst incu&#ent o""icials or e&plo(ees in t!e Judiciar(.

!e creation o" suc! ad hoc investi%atin% #odies, as 'ell as t!e appoint&ent o" ad hoc investi%ators, does not result in t!e creationo" a pu#lic o""ice. In creatin% ad hoc investi%ator( #odies or appointin% ad hoc investi%ators, executive and =udicial o""icials do notcreate pu#lic o""ices #ut &erel( exercise a po'er in!erent in t!eir pri&ar( constitutional or statutor( "unctions, '!ic! &a( #e toexecute t!e la', to exercise disciplinar( aut!orit(, or #ot!. !ese "act-"indin% #odies and investi%ators are not per&anent #odies or"unctionaries, unli$e pu#lic o""ices or t!eir occupants. !ere is no separate co&pensation, ot!er t!an per diems or allo'ances, "ort!ose desi%nated as &e&#ers o" ad hoc investi%atin% #odies or as ad !oc investi%ators.





















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Presidential Decree No. 1+18 3PD 1+184 cannot #e used as #asis o" t!e PresidentBs po'er to reor%ani5e !is O""ice or create t!erut! Co&&ission. PD 1+18, as a&ended, dele%ates to t!e President /continuin% aut!orit( to reor%ani5e t!e National0overn&ent,/1) '!ic! &eans t!e Executive, Le%islative and Judicial #ranc!es o" %overn&ent, in addition to t!e independentconstitutional #odies. Suc! dele%ation can exist onl( in a dictatorial re%i&e, not under a de&ocratic %overn&ent "ounded on t!eseparation o" po'ers. !e ot!er po'ers %ranted to t!e President under PD 1+18, as a&ended, li$e t!e po'er to trans"erappropriations 'it!out conditions and t!e po'er to standardi5e salaries, are also contrar( to t!e provisions o" t!e [email protected]* PD 1+18, '!ic! 'as pro&ul%ated durin% t!e ;artial La' re%i&e to "acilitate t!e transition "ro& t!e presidential to aparlia&entar( "or& o" %overn&ent under t!e 19* Constitution,1+ is no' "unctus o""icio and dee&ed repealed upon t!e rati"ication o"

t!e 1@9 Constitution.

!e PresidentBs po'er to create ad hoc "act-"indin% #odies does not e&anate "ro& t!e PresidentBs po'er o" control over t!eExecutive #ranc!. !e PresidentBs po'er o" control is t!e po'er to reverse, revise or &odi"( t!e decisions o" su#ordinate executiveo""icials, or su#stitute !is o'n decision "or t!at o" !is su#ordinate, or even &a$e t!e decision !i&sel" 'it!out 'aitin% "or t!e action o"!is su#ordinate.1 !is po'er o" control does not involve t!e po'er to create a pu#lic o""ice. Neit!er does t!e PresidentBs po'er to"ind "acts or !is #roader po'er to execute t!e la's %ive t!e President t!e po'er to create a pu#lic o""ice.<avvphi< !e President canexercise t!e po'er to "ind "acts or to execute t!e la's 'it!out creatin% a pu#lic o""ice.

bjections to E !

here 6s 9o surpation of Congress2 Power o %ppropriate 4unds

Petitioners La%&an, et al. ar%ue t!at EO 1 usurps t!e exclusive po'er o" Con%ress to appropriate "unds #ecause it %ives t!e

President t!e po'er to appropriate "unds "or t!e operations o" t!e rut! Co&&ission. Petitioners La%&an, et al. add t!at noparticular source o" "undin% is identi"ied and t!at t!e a&ount o" "unds to #e used is not speci"ied.

Con%ress is exclusivel( vested 'it! t!e /po'er o" t!e purse,/ reco%ni5ed in t!e constitutional provision t!at /no &one( s!all #e paidout o" t!e reasur( except in pursuance o" an appropriation &ade #( la'./18 !e speci"ic purpose o" an appropriation la' is toaut!ori5e t!e release o" unappropriated pu#lic "unds "ro& t!e National reasur(.19

Section 11 o" EO 1 &erel( states t!at /t!e O""ice o" t!e President s!all provide t!e necessar( "unds "or t!e Co&&ission to ensuret!at it can exercise its po'ers, execute its "unctions, and per"or& its duties and responsi#ilities as e""ectivel(, e""icientl(, andexpeditiousl( as possi#le./ Section 11 does not direct t!e National reasurer to release unappropriated "unds in t!e Nationalreasur( to "inance t!e operations o" t!e rut! Co&&ission. Section 11 does not also sa( t!at t!e President is appropriatin%, or ise&po'ered to appropriate, "unds "ro& t!e unappropriated "unds in t!e National reasur(. Clearl(, t!ere is a#solutel( no lan%ua%e inEO 1 appropriatin%, or e&po'erin% t!e President to appropriate, unappropriated "unds in t!e National reasur(.

Section 11 o" EO 1 &erel( states t!at t!e O""ice o" t!e President s!all "und t!e operations o" t!e rut! Co&&ission. nder EO 1,

t!e "unds to #e spent "or t!e operations o" t!e rut! Co&&ission !ave alread( #een appropriated #( Con%ress to t!e O""ice o" t!ePresident under t!e current 0eneral 6ppropriations 6ct. !e #ud%et "or t!e O""ice o" t!e President under t!e annual 0eneral

6ppropriations 6ct al'a(s contains a Contin%ent und1@t!at can "und t!e operations o" ad !oc investi%atin% #odies li$e t!e rut!Co&&ission. In t!is case, t!ere is no appropriation #ut &erel( a dis#urse&ent #( t!e President o" "unds t!at Con%ress !ad alread(appropriated "or t!e O""ice o" t!e President.

he ruth Commission 6s 9ot % uasi5-udicial )ody

!ile petitioners La%&an, et al. insist t!at t!e rut! Co&&ission is a <uasi-=udicial #od(, t!e( ad&it t!at t!ere is no speci"icprovision in EO 1 t!at states t!at t!e rut! Co&&ission !as <uasi-=udicial po'ers.1


O$a(. No'. LetBs tac$le t!at issue. !ere in t!e Executive Order is it stated t!at Kt!e rut! Co&&issionG !as a <uasi-=udicial po'erS!o' &e t!e provision.

CON0RESS;6N L60;6N>

!ere is no exact provision.

!ere is no lan%ua%e in EO 1 %rantin% t!e rut! Co&&ission <uasi-=udicial po'er, 4=e=er e<:re; or m:e-;, #ecause t!erut! Co&&ission is not, and 'as never intended to #e, a <uasi-=udicial #od(. !e po'er o" t!e President to create o""ices 'it!in t!eO""ice o" t!e President Proper is a po'er to create onl( executive or ad&inistrative o""ices, not <uasi-=udicial o""ices or #odies.
























8/13/2019 G.R. No. 192935 December 7, 2010


ndenia#l(, a <uasi-=udicial o""ice or #od( can onl( #e created #( t!e Le%islature. !e rut! Co&&ission, as created under EO 1, isnot a <uasi-=udicial #od( and is not vested 'it! an( <uasi-=udicial po'er or "unction.

!e exercise o" <uasi-=udicial "unctions involves t!e deter&ination, 'it! respect to t!e &atter in controvers(, o" '!at t!e la' is, '!att!e le%al ri%!ts and o#li%ations o" t!e contendin% parties are, and #ased t!ereon and t!e "acts o#tainin%, t!e ad=udication o" t!erespective ri%!ts and o#li%ations o" t!e parties.) !e tri#unal, #oard or o""icer exercisin% <uasi-=udicial "unctions &ust #e clot!ed'it! t!e po'er to pass =ud%&ent on t!e controvers(.)1 &n short, )uasi*judicial power is the power of an administrative body toadjudicate the rights and obligations of parties under its jurisdiction in a manner that is final and binding, unless there is a

proper appeal. In t!e recent case o" )edol v. Commission on &lections,)) t!is Court declared>

*+HE-c+ or +-mr+e +-E-c+or; :o4er o =e o=er =+- =e :o4er o =e +-mr+e +6ec; toadjudicate the rights of persons before it . It is t!e po'er to !ear and deter&ine <uestions o" "act to '!ic! t!e le%islative polic( isto appl( and to decide in accordance 'it! t!e standards laid do'n #( t!e la' itsel" in en"orcin% and ad&inisterin% t!e sa&e la'. !ead&inistrative #od( exercises its <uasi-=udicial po'er '!en it per"or&s in a =udicial &anner an act '!ic! is essentiall( o" anexecutive or ad&inistrative nature, '!ere t!e po'er to act in suc! &anner is incidental to or reasona#l( necessar( "or t!eper"or&ance o" t!e executive or ad&inistrative dut( entrusted to it. In carr(in% out t!eir <uasi-=udicial "unctions t!e ad&inistrativeo""icers or #odies are re<uired to investi%ate "acts or ascertain t!e existence o" "acts, !old !earin%s, 'ei%! evidence, and dra'conclusions "ro& t!e& as #asis "or t!eir o""icial action and exercise o" discretion in a =udicial nature.)* 3E&p!asis supplied4

nder EO 1, t!e rut! Co&&ission pri&aril( investi%ates reports o" %ra"t and corruption and reco&&ends t!e appropriate actions to#e ta$en. !us, Section ) o" EO 1 states t!at t!e rut! Co&&ission is /pri&aril( tas$ed to conduct a t!orou%! "act-"indin%investi%ation o" reported cases o" %ra"t and corruption and t!erea"ter su#&it its "indin%s and reco&&endations to t!e President,Con%ress and t!e O&#uds&an./ !e President, Con%ress and t!e O&#uds&an are not #ound #( t!e "indin%s and

reco&&endations o" t!e rut! Co&&ission. Neit!er are t!e parties su#=ect o" t!e "act-"indin% investi%ation #ound #( t!e "indin%sand reco&&endations o" t!e rut! Co&&ission.

Clearl(, t!e "unction o" t!e rut! Co&&ission is &erel( e6+e and recomme-+or; in nature. !e rut! Co&&ission !asno po'er to ad=udicate t!e ri%!ts and o#li%ations o" t!e persons '!o co&e #e"ore it. Not!in% '!atsoever in EO 1 %ives t!e rut!Co&&ission <uasi-=udicial po'er, expressl( or i&pliedl(. In s!ort, t!e rut! Co&&ission is not a <uasi-=udicial #od( #ecause it doesnot exercise t!e <uasi-=udicial po'er to #ind parties #e"ore it 'it! its actions or decisions.

!e creation o" t!e rut! Co&&ission !as t!ree distinct purposes since it is tas$ed to su#&it its "indin%s to t!e President, Con%ressand t!e O&#uds&an. !e rut! Co&&ission 'ill su#&it its "indin%s to t!e President so t!at t!e President can "ait!"ull( execute t!ela'. or exa&ple, t!e rut! Co&&ission &a( reco&&end to t!e President t!at Depart&ent Secretaries s!ould personall( approvedis#urse&ents o" "unds in certain contracts or pro=ects a#ove a certain a&ount and not dele%ate suc! "unction to t!eirndersecretaries.)+ !e rut! Co&&ission 'ill also su#&it its "indin%s to Con%ress "or t!e possi#le enact&ent #( Con%ress o"re&edial le%islation. or exa&ple, Con%ress &a( pass a la' penali5in% Depart&ent Secretaries '!o dele%ate to t!eirndersecretaries t!e approval o" dis#urse&ent o" "unds contrar( to t!e directive o" t!e President. Lastl(, t!e rut! Co&&ission 'illsu#&it its "indin%s to t!e O&#uds&an "or possi#le "urt!er investi%ation o" t!ose '!o &a( !ave violated t!e la'. !e O&#uds&an

&a( eit!er conduct a "urt!er investi%ation or si&pl( i%nore t!e "indin%s o" t!e rut! Co&&ission. Incidentall(, t!e O&#uds&an !aspu#licl( stated t!at s!e supports t!e creation o" t!e rut! Co&&ission and t!at s!e 'ill cooperate 'it! i ts investi%ation.)

!at EO 1 declares t!at t!e rut! Co&&ission /'ill act as an independent colle%ial #od(/ cannot invalidate EO 1. !is provision&erel( &eans t!at t!e President 'ill not dictate on t!e &e&#ers o" t!e rut! Co&&ission on '!at t!eir "indin%s andreco&&endations s!ould #e. !e rut! Co&&ission is "ree to co&e out 'it! its o'n "indin%s and reco&&endations, "ree "ro& an(inter"erence or pressure "ro& t!e President. O" course, as EO 1 expressl( provides, t!e President, Con%ress and t!e O&#uds&anare not #ound #( suc! "indin%s and reco&&endations.

here 6s 9o surpation of thePowers of the !mbudsman

Petitioners La%&an, et al. ar%ue t!at since t!e O&#uds&an !as t!e exclusive =urisdiction to investi%ate %ra"t and corruption cases,t!e rut! Co&&ission encroac!es on t!is exclusive po'er o" t!e O&#uds&an.

!ere are t!ree t(pes o" "act-"indin% investi%ations in t!e Executive #ranc!. 4irst , t!ere is t!e purel( "act-"indin% investi%ation t!epurpose o" '!ic! is to esta#lis! t!e "acts as #asis "or "uture executive action, excludin% t!e deter&ination o" ad&inistrativeculpa#ilit( or t!e deter&ination o" pro#a#le cause. econd , t!ere is t!e ad&inistrative investi%ation to deter&ine ad&inistrativeculpa#ilities o" pu#lic o""icials and e&plo(ees. hird , t!ere is t!e preli&inar( investi%ation '!ose sole purpose is to deter&inepro#a#le cause as to t!e existence and perpetrator o" a cri&e. !ese t!ree t(pes o" "act-"indin% investi%ations are separate anddistinct investi%ations.

6 purel( "act-"indin% investi%ation under t!e O""ice o" t!e President is t!e "irst t(pe o" "act-"indin% investi%ation. Suc! "act-"indin%investi%ation !as t!ree distinct o#=ectives. !e "irst is to i&prove ad&inistrative procedures and e""icienc(, institute ad&inistrative&easures to prevent corruption, and reco&&end polic( options _ all 'it! t!e o#=ective o" ena#lin% t!e President to execute "ait!"ull(t!e la'. !e second is to reco&&end to Con%ress possi#le le%islation in response to ne' conditions #rou%!t to li%!t in t!e "act-





















8/13/2019 G.R. No. 192935 December 7, 2010


"indin% investi%ation. !e t!ird is to reco&&end to t!e !ead o" o""ice t!e "ilin% o" a "or&al ad&inistrative c!ar%e, or t!e "ilin% o" acri&inal co&plaint #e"ore t!e prosecutor.

nder t!e t!ird o#=ective, t!e "act-"indin% investi%ation is &erel( a %at!erin% and evaluation o" "acts to deter&ine '!et!er t!ere issu""icient #asis to proceed 'it! a "or&al ad&inistrative c!ar%e, or t!e "ilin% o" a cri&inal co&plaint #e"ore t!e prosecutor '!o 'illconduct a preli&inar( investi%ation. !is purel( "act-"indin% investi%ation does not deter&ine ad&inistrative culpa#ilit( or t!eexistence o" pro#a#le cause. !e "act-"indin% investi%ation co&es #e"ore an ad&inistrative investi%ation or preli&inar( investi%ation,'!ere ad&inistrative culpa#ilit( or pro#a#le cause, respectivel(, is deter&ined.

On t!e ot!er !and, an ad&inistrative investi%ation "ollo's, and ta$es up, t!e reco&&endation o" a purel( "act-"indin% investi%ation toc!ar%e "or&all( a pu#lic o""icial or e&plo(ee "or possi#le &isconduct in o""ice. Si&ilarl(, a preli&inar( investi%ation is an in<uir( todeter&ine '!et!er t!ere is su""icient %round to #elieve t!at a cri&e !as #een co&&itted and t!at t!e respondent is pro#a#l( %uilt( o"suc! cri&e, and s!ould #e !eld "or trial.)8 6 preli&inar( investi%ationBs sole purpose is to deter&ine '!et!er t!ere is pro#a#le causeto c!ar%e a person "or a cri&e.

Section 1 o" Repu#lic 6ct No. 899)9 provides>

SEC. 1. Powers, 4unctions and 3uties. - !e O""ice o" t!e O&#uds&an s!all !ave t!e "ollo'in% po'ers, "unctions and duties> x x x

314 Investi%ate and prosecute on its o'n or on co&plaint #( an( person, an( act or o&ission o" an( pu#lic o""icer or e&plo(ee, o""iceor a%enc( '!en suc! act or o&ission appears to #e ille%al, un=ust, i&proper or ine""icient. I =+ :rm+r; Er-co oer c+eco6+be b; =e S+-6+b+;+ +-, =e e<erce o = :rm+r; Er-co, m+; +e oer, + +; +6e, rom +;

e6+or; +6ec; o Goerme, =e e6+o o c= c+eA x x x 3E&p!asis supplied4

!e O&#uds&an !as /pri&ar( =urisdiction over cases co%ni5a#le #( t!e Sandi%an#a(an./ !e cases co%ni5a#le #( t!eSandi%an#a(an are cri&inal cases as 'ell as <uasi-cri&inal cases li$e t!e "or"eiture o" unexplained 'ealt!.)@ /KIGn t!e exercise o" t!ispri&ar( =urisdiction/ over cases co%ni5a#le #( t!e Sandi%an#a(an, t!e O&#uds&an /&a( ta$e over x x x t!e investi%ation o" suc!cases/ "ro& an( investi%ator( a%enc( o" t!e 0overn&ent. !e cases covered #( t!e / primary jurisdiction/ o" t!e O&#uds&an arecri&inal or <uasi-cri&inal cases #ut not ad&inistrative cases. 6d&inistrative cases, suc! as ad&inistrative disciplinar( cases, arenot co%ni5a#le #( t!e Sandi%an#a(an. it! &ore reason, purel( "act-"indin% investi%ations conducted #( t!e Executive #ranc! arenot co%ni5a#le #( t!e Sandi%an#a(an.

Purel( "act-"indin% investi%ations to i&prove ad&inistrative procedures and e""icienc(, to institute ad&inistrative &easures to preventcorruption, to provide t!e President 'it! polic( options, to reco&&end to Con%ress re&edial le%islation, and even to deter&ine'!et!er t!ere is #asis to "ile a "or&al ad&inistrative c!ar%e a%ainst a %overn&ent o""icial or e&plo(ee, do not "all under t!e /pri&ar(

=urisdiction/ o" t!e O&#uds&an. !ese "act-"indin% investi%ations do not involve cri&inal or <uasi-cri&inal cases co%ni5a#le #( t!eSandi%an#a(an.

I" t!e O&#uds&an !as t!e po'er to ta$e-over purel( "act-"indin% investi%ations "ro& t!e President or !is su#ordinates, t!en t!ePresident 'ill #eco&e inutile. !e President 'ill #e '!oll( dependent on t!e O&#uds&an, 'aitin% "or t!e O&#uds&an to esta#lis!t!e "acts #e"ore t!e President can act to execute "ait!"ull( t!e la'. !e Constitution does not vest suc! po'er in t!e O&#uds&an.No statute %rants t!e O&#uds&an suc! po'er, and i" t!ere 'ere, suc! la' 'ould #e unconstitutional "or usurpin% t!e po'er o" t!ePresident to "ind "acts necessar( and proper to !is "ait!"ul execution o" t!e la'.

2esides, i" t!e O&#uds&an !as t!e e+clusive po'er to conduct "act-"indin% investi%ations, t!en even t!e Judiciar( and t!eLe%islature cannot per"or& t!eir "unda&ental "unctions 'it!out t!e action or approval o" t!e O&#uds&an. !ile t!e Constitution%rants t!e O""ice o" t!e O&#uds&an t!e po'er to /KiGnvesti%ate on its o'n x x x an( act or o&ission o" an( pu#lic o""icial, e&plo(ee,o""ice or a%enc(,/) suc! po'er is o e<ce. o !old t!at suc! investi%ator( po'er is exclusive to t!e O&#uds&an is to &a$et!e Executive, Le%islative and Judiciar( '!oll( dependent on t!e O&#uds&an "or t!e per"or&ance o" t!eir Executive, Le%islativeand Judicial "unctions.

Even in investi%ations involvin% cri&inal and <uasi-cri&inal cases co%ni5a#le #( t!e Sandi%an#a(an, t!e O&#uds&an does not!ave exclusive =urisdiction to conduct preli&inar( investi%ations. In 1onasan 66 v. he Panel of 6nvestigating Prosecutors of the

3epartment of -ustice,* t!is Court !eld>

I mm+o, =e Coo, Seco 15 o =e Omb-m+ Ac o 19@9 +- Seco 8 o =e S+-6+b+;+ L+4, ++me-e-, -o o 6e o =e Omb-m+ e<ce Er-co o e6+e oee comme- b; :bc ocer orem:o;ee. !e aut!orit( o" t!e O&#uds&an to investi%ate o""enses involvin% pu#lic o""icers or e&plo(ees is concurrent 'it! ot!er%overn&ent investi%atin% a%encies suc! as provincial, cit( and state prosecutors. :o'ever, t!e O&#uds&an, in t!e exercise o" itspri&ar( =urisdiction over cases co%ni5a#le #( t!e Sandi%an#a(an, &a( ta$e over, at an( sta%e, "ro& an( investi%atin% a%enc( o" t!e%overn&ent, t!e investi%ation o" suc! cases.*1 3E&p!asis supplied4




















8/13/2019 G.R. No. 192935 December 7, 2010


o repeat, 1onasan 66 cate%oricall( ruled t!at "=e Coo, Seco 15 o =e Omb-m+ Ac o 19@9 +- Seco 8 o=e S+-6+b+;+ L+4, + +me-e-, -o o 6e =e Omb-m+ e<ce Er-co o e6+e oeecomme- b; :bc oc+ +- em:o;ee."

!e concurrent jurisdiction o" t!e O&#uds&an re"ers to t!e conduct o" a preliminary investigation to deter&ine i" t!ere is pro#a#lecause to c!ar%e a pu#lic o""icer or e&plo(ee 'it! an o""ense, not to t!e conduct o" a purel( ad&inistrative "act-"indin% investi%ationt!at does not involve t!e deter&ination o" pro#a#le cause.*) !e rut! Co&&ission is a purel( "act-"indin% #od( t!at does notdeter&ine t!e existence o" pro#a#le cause. !ere is no accused or even a suspect #e"ore t!e rut! Co&&ission, '!ic! &erel(

conducts a %eneral in<uir( on reported cases o" %ra"t and corruption. No one 'ill even #e under custodial investi%ation #e"ore t!erut! Co&&ission.**!us, t!e clai& t!at t!e rut! Co&&ission is usurpin% t!e investi%ator( po'er o" t!e O&#uds&an, or o" an(ot!er %overn&ent o""icial, !as no #asis '!atsoever.

In criminal fact*finding investigations, t!e la' expressl( vests in t!e P!ilippine National Police 3PNP4 and t!e National 2ureau o"Investi%ation 3N2I4 investi%ator( po'ers. Section )+ o" Repu#lic 6ct No. 89*+ provides>

Section )+. Po'ers and unctions !e PNP s!all !ave t!e "ollo'in% po'ers and duties>

3a4 x x x

x x x

3c4 Ie6+e and prevent crme, e""ect t!e arrest o" cri&inal o""enders, #rin% o""enders to =ustice, and assist in t!eir

prosecutionA

x x x. 3E&p!asis supplied4

Section 1 o" Repu#lic 6ct No. 19 also provides>

Section 1. !ere is !ere#( created a 2ureau o" Investi%ation under t!e Depart&ent o" Justice '!ic! s!all !ave t!e "ollo'in%"unctions>

3a4 To -er+e e6+o o crme +- o=er oee a%ainst t!e la's o" t!e P!ilippines, upon its o'n initiativeand as pu#lic interest &a( re<uireA

x x x. 3E&p!asis supplied4

!e PNP and t!e N2I are under t!e coro o" t!e President. Indisputa#l(, t!e President can at an( ti&e direct t!e PNP and N2I,'!et!er sin%l(, =ointl( or in coordination 'it! ot!er %overn&ent #odies, to investi%ate possi#le violations o" penal la's, '!et!erco&&itted #( pu#lic o""icials or private individuals. o sa( t!at t!e O&#uds&an !as t!e exclusive po'er to conduct "act-"indin%investi%ations o" cri&es involvin% pu#lic o""icials and e&plo(ees is to i&&o#ili5e our la'-en"orce&ent a%encies and allo' %ra"t andcorruption to run riot. !e "act-"indin% ar& o" t!e Depart&ent o" Justice 3DOJ4 to investi%ate cri&es, '!et!er co&&itted #( pu#lic orprivate parties, is t!e N2I.*!e DOJ Proper does not conduct "act-"indin% investi%ations o" cri&es, #ut onl( preli&inar(investi%ations.

he ruth Commission1as ubpoena Powers

Section ) o" EO 1 provides t!at t!e rut! Co&&ission s!all !ave all t!e po'ers o" an investi%ative #od( under Section *9, C!apter, 2oo$ I o" EO )), '!ic! reads>

Sec. *9. Powers 6ncidental to a*ing of estimony . - !en aut!orit( to ta$e testi&on( or receive evidence is con"erred upon an(ad&inistrative o""icer or an( non-=udicial person, co&&ittee, or ot!er #od(, suc! aut!orit( s!all include t!e po'er to ad&inisteroat!s, su&&on 'itnesses, and re<uire t!e production o" docu&ents #( asubpoena duces tecum. 3E&p!asis supplied4

Section )3e4 o" EO 1 con"ers on t!e rut! Co&&ission t!e po'er to /KiGnvite or su#poena 'itnesses and ta$e t!eir testi&onies and"or t!at purpose, ad&inister oat!s or a""ir&ation as t!e case &a( #e./ !us, t!e rut! Co&&ission, a #od( aut!ori5ed to ta$etesti&on(, can ad&inister oat!s and issue su#poena and subpoena duces tecum pursuant to Section *9, C!apter , 2oo$ I o" EO)). In "act, t!is po'er to ad&inister oat!s and to issue su#poena and su#poena duces tecu& is a po'er o" ever( ad&inistrative"act-"indin% investi%ative #od( created in t!e Executive, Le%islative or Judicial #ranc!. Section *9, C!apter , 2oo$ I o" EO ))%rants suc! po'er to ever( "act-"indin% #od( so created.













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he ruth Commission1as 9o Contempt Powers

Section o" EO 1 provides>

Section . 'efusal to !bey ubpoena, a*e !ath or #ive estimony. 6n( %overn&ent o""icial or personnel '!o, 'it!out la'"ulexcuse, "ails to appear upon su#poena issued #( t!e Co&&ission or '!o, appearin% #e"ore t!e Co&&ission re"uses to ta$e oat! or

a""ir&ation, %ive testi&on( or produce docu&ents "or inspection, '!en re<uired, s!all #e su#=ect to ad&inistrative disciplinar( action. 6n( private person '!o does t!e sa&e &a( #e dealt 'it! in accordance 'it! la'.

!ere is no provision in EO 1 t!at %ives t!e rut! Co&&ission t!e po'er to cite persons "or conte&pt. 6s explained #( Solicitor0eneral Jose 6nsel&o I. Cadi5, i" t!e person '!o re"uses to o#e( t!e su#poena, ta$e oat! or %ive testi&on( is a pu#lic o""icer, !ecan #e c!ar%ed 'it! /de"iance o" a la'"ul order,/*8 '!ic! s!ould &ean insu#ordination*9 i" !is superior !ad ordered !i& to o#e( t!esu#poena o" t!e rut! Co&&ission. I" t!e person is not a pu#lic o""icer or e&plo(ee, !e can onl( #e dealt 'it! in accordance 'it!la', '!ic! s!ould &ean t!at t!e rut! Co&&ission could "ile a petition 'it! t!e proper court to cite suc! private person in conte&ptpursuant to Sections 1*@ and * o" Rule )1 o" t!e Rules o" Court.

:o'ever, t!e &ere "act t!at t!e rut! Co&&ission, #( itsel", !as no coercive po'er to co&pel an( one, '!et!er a %overn&ente&plo(ee or a private individual, to testi"( #e"ore t!e Co&&ission does not invalidate t!e creation #( t!e President, or #( t!eJudiciar( or Le%islature, o" a purel( ad&inistrative "act-"indin% investi%ative #od(. !ere are 'itnesses '!o &a( voluntaril( testi"(,and #rin% relevant docu&ents, #e"ore suc! "act-"indin% #od(. !e "act-"indin% #od( &a( even rel( onl( on o""icial records o" t!e%overn&ent. o re<uire ever( ad&inistrative "act-"indin% #od( to !ave coercive or conte&pt po'ers is to invalidate all ad&inistrative"act-"indin% #odies created #( t!e Executive, Le%islative and Judicial #ranc!es o" %overn&ent.

he 9ame "ruth Commission" Cannot 6nvalidate &! <

!ere is &uc! ado a#out t!e 'ords /rut! Co&&ission/ as t!e na&e o" t!e "act-"indin% #od( created under EO 1.T=ere o +4or re :recrb6 =o4 + +cH-6 bo-; =o- be +me-. In "act, t!ere is no la' or rule prescri#in% !o' per&anent%overn&ent co&&issions, o""ices, or entities s!ould #e na&ed.+ T=ere +o o +4 or re :ro=b6 =e e o =e 4or-"Tr= Commo" + =e +me o + +cH-6 bo-;.;ost "act-"indin% #odies are na&ed, eit!er o""iciall( or uno""iciall(, a"tert!e c!airperson o" suc! #od(, '!ic! #( itsel", 'ill not %ive an( clue as to t!e nature, po'ers or "unctions o" t!e #od(. !us, t!ena&e eliciano Co&&ission or ;elo Co&&ission, #( itsel", does not indicate '!at t!e co&&ission is all a#out. Na&in% t!e present"act-"indin% #od( as t!e /rut! Co&&ission/ is &ore descriptive t!an na&in% it t!e Davide Co&&ission a"ter t!e na&e o" itsc!airperson.

!e na&e o" a %overn&ent co&&ission, o""ice or entit( does not deter&ine its nature, po'ers or "unctions. !e speci"ic provisionso" t!e c!arter creatin% t!e co&&ission, o""ice or entit( deter&ine its nature, po'ers or "unctions. !e na&e o" t!e co&&ission, o""ice

or entit( is not i&portant and &a( even #e &isleadin%. or exa&ple, t!e ter& O&#uds&an connotes a &ale o""icial #ut no one in !isri%!t &ind 'ill ar%ue t!at a "e&ale cannot #e an O&#uds&an. In "act, t!e present O&#uds&an is not a &an #ut a 'o&an. In t!eprivate sector, t!e na&e o" a corporation &a( not even indicate '!at t!e corporation is all a#out. !us, 6pple Corporation is not int!e #usiness o" sellin% apples or even oran%es. 6n individual &a( #e na&ed :onesto #ut !e &a( #e an(t!in% #ut !onest. A =e =+ -eerm6 =e +re, :o4er or co o + commo, oce or e;, cor =o- o be <+e-b; +me b =o- e<+me 4=+ +e- or em:o4ere- o -o.

In an( event, t!ere is not!in% in!erentl( 'ron% in t!e 'ords /rut! Co&&ission/ as t!e na&e o" a "act-"indin% #od(. !e pri&ar(purpose o" ever( "act-"indin% #od( is to esta#lis! t!e "acts. !e "acts lead to, or even constitute, t!e trut!. In essence, to esta#lis!t!e "acts is to esta#lis! t!e trut!. !us, t!e na&e /rut! Co&&ission/ is as appropriate as t!e na&e /act-indin% Co&&ission./ I"t!e na&e o" t!e co&&ission created in EO 1 is c!an%ed to /act-indin% Co&&ission,/ t!e nature, po'ers and "unctions o" t!eco&&ission 'ill re&ain exactl( t!e sa&e. !is si&pl( s!o's t!at t!e na&e o" t!e co&&ission created under EO 1 is not i&portant,and an( esoteric discourse on t!e ra&i"ications o" t!e na&e /rut! Co&&ission/ is &erel( an acade&ic exercise. O" course, t!ena&e /rut! Co&&ission/ is &ore appealin% t!an t!e 'orn-out na&e /act-indin% Co&&ission./ Courts, !o'ever, cannotinvalidate a la' or executive issuance =ust #ecause its dra"ts&an !as a "lair "or catc!( 'ords and a disdain "or trite ones. nder t!ela', a "act-"indin% co&&ission #( an( ot!er na&e is a "act-"indin% co&&ission.+1

!e Pu#lic ill Not 2e Deceived t!atindin%s o" rut! Co&&ission 6re inal

!e "ear t!at t!e pu#lic 'ill auto&aticall( perceive t!e "indin%s o" t!e rut! Co&&ission as t!e /trut!,/ and an( su#se<uent contrar("indin%s #( t!e O&#uds&an or Sandi%an#a(an as t!e /untrut!,/ is &isplaced. irst, EO 1 is une<uivocall( clear t!at t!e "indin%s o"t!e rut! Co&&ission are neit!er "inal nor #indin% on t!e O&#uds&an, &ore so on t!e Sandi%an#a(an '!ic! is not even&entioned in EO 1. No one readin% EO 1 can possi#l( #e deceived or &isled t!at t!e O&#uds&an or t!e Sandi%an#a(an are #ound#( t!e "indin%s o" t!e rut! Co&&ission.


















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Second, even i" t!e rut! Co&&ission is rena&ed t!e /act-indin% Co&&ission,/ t!e sa&e ar%u&ent can also #e raised W t!att!e pu#lic &a( auto&aticall( perceive t!e "indin%s o" t!e act-indin% Co&&ission as t!e un<uestiona#le /"acts,/ and an(su#se<uent contrar( "indin%s #( t!e O&#uds&an or Sandi%an#a(an as /non-"actual./ !is ar%u&ent is #ere"t o" &erit #ecause t!epu#lic can easil( read and understand '!at EO 1 expressl( sa(s W t!at t!e "indin%s o" t!e rut! Co&&ission are not "inal or#indin% #ut &erel( reco&&endator(.

!ird, t!e ilipino people are "a&iliar 'it! t!e 6%rava 2oard,+) a "act-"indin% #od( t!at investi%ated t!e assassination o" "or&erSenator 2eni%no S. 6<uino, Jr. !e people $no' t!at t!e "indin%s o" t!e 6%rava 2oard 'ere not #indin% on t!e t!en anod#a(an or

t!e Sandi%an#a(an. !e 6%rava 2oard reco&&ended "or prosecution )8 na&ed individuals+* #ut t!e anod#a(an c!ar%ed +na&ed individuals++ #e"ore t!e Sandi%an#a(an. On t!e ot!er !and, t!e Sandi%an#a(an convicted onl( 18 o" t!ose c!ar%ed #( t!eanod#a(an and ac<uitted ) o" t!e accused.+

ourt!, as &ost ilipinos $no', &an( persons '!o under%o preli&inar( investi%ation and are c!ar%ed "or co&&ission o" cri&es areeventuall( ac<uitted #( t!e trial courts, and even #( t!e appellate courts. In s!ort, t!e "ear t!at t!e pu#lic 'ill #e &isled t!at t!e"indin%s o" t!e rut! Co&&ission is t!e unerrin% %ospel trut! is &ore i&a%ined t!an real.

&! < 3oes 9ot /iolatehe &8ual Protection Clause

Petitioners La%&an, et al. ar%ue t!at EO 1 violates t!e e<ual protection clause #ecause t!e investi%ation o" t!e rut! Co&&ission isli&ited to alle%ed acts o" %ra"t and corruption durin% t!e 6rro(o ad&inistration.

6 readin% o" Section 19 o" EO 1 readil( s!o's t!at t!e rut! Co&&issionBs investi%ation is not li&ited to t!e 6rro(o ad&inistration.Section 19 o" EO 1 provides>

Section 19. pecial Provision Concerning 0andate. I" and '!en in t!e =ud%&ent o" t!e President t!ere is a need to expand t!e&andate o" t!e Co&&ission as de"ined in Section 1 !ereo" to include t!e investi%ation o" cases and instances o" %ra"t andcorruption durin% t!e prior ad&inistrations, suc! &andate &a( #e extended accordin%l( #( 'a( o" a supple&ental ExecutiveOrder. 3E&p!asis supplied4

!e President can expand t!e &andate o" t!e rut! Co&&ission to investi%ate alle%ed %ra"t and corruption cases o" ot!er pastad&inistrations even as its pri&ar( tas$ is to investi%ate t!e 6rro(o ad&inistration. EO 1 does not con"ine t!e &andate o" t!e rut!Co&&ission solel( to alle%ed acts o" %ra"t and corruption durin% t!e 6rro(o 6d&inistration.

Section 19 o" EO 1 is t!e sa&e as Section )3#4 o" Executive Order No. 1 dated )@ e#ruar( 1@8 issued #( President Cora5on 6<uino creatin% t!e Presidential Co&&ission on 0ood 0overn&ent 3PC00 C!arter4. Section )3#4 o" t!e PC00 C!arter provides>

Section ). !e Co&&ission s!all #e c!ar%ed 'it! t!e tas$ o" assistin% t!e President in re%ard to t!e "ollo'in% &atters>

3a4 !e recover( o" all ill-%otten 'ealt! accu&ulated #( "or&er President erdinand E. ;arcos, !is i&&ediate "a&il(,relatives, su#ordinates and close associates xxx.

3#4 !e investi%ation o" suc! cases o" %ra"t and corruption as t!e President &a( assi%n to t!e Co&&ission "ro& ti&e toti&e.

x x x x . 3E&p!asis supplied4

!us, under Section )3#4 o" t!e PC00 C!arter, t!e President can expand t!e investi%ation o" t!e PCC0 even as its pri&ar( tas$ isto recover t!e ill-%otten 'ealt! o" t!e ;arcoses and t!eir cronies. 2ot! EO 1 and t!e PC00 C!arter !ave t!e sa&e provisions ont!e scope o" t!eir investi%ations. 2ot! t!e rut! Co&&ission and t!e PC00 are pri&aril( tas$ed to conduct speci"ic investi%ations,'it! t!eir &andates su#=ect to expansion #( t!e President "ro& ti&e to ti&e. !is Court !as consistentl( up!eld t!e constitutionalit(

o" t!e PC00 C!arter.+8

Li$e Section )3#4 o" t!e PC00 C!arter, Section 19 o" EO 1 &erel( prioriti5es t!e investi%ation o" acts o" %ra"t and corruption t!at&a( !ave ta$en place durin% t!e 6rro(o ad&inistration. I" ti&e allo's, t!e President &a( extend t!e &andate o" t!e rut!Co&&ission to investi%ate ot!er ad&inistrations prior to t!e 6rro(o ad&inistration. !e prioriti5ation o" suc! 'or$ or assi%n&entdoes not violate t!e e<ual protection clause #ecause t!e prioriti5ation is #ased on reasona#le %rounds.

irst, t!e prescriptive period "or t!e &ost serious acts o" %ra"t and corruption under t!e Revised Penal Code is ) (ears,+9 1 (ears"or o""enses punis!a#le under t!e 6nti-0ra"t and Corrupt Practices 6ct,+@ and 1) (ears "or o""enses punis!a#le under special penalla's t!at do not expressl( provide "or prescriptive periods.+ 6n( investi%ation 'ill !ave to "ocus on alle%ed acts o" %ra"t andcorruption 'it!in t!e last ) (ears, al&ost !al" o" '!ic! or (ears is under t!e 6rro(o ad&inistration.






















8/13/2019 G.R. No. 192935 December 7, 2010


!ile it is true t!at t!e prescriptive period is counted "ro& t!e ti&e o" discover( o" t!e o""ense, t!e /reported cases/ o" /lar%e scalecorruption/1 involvin% /t!ird level pu#lic o""icers and !i%!er,/) '!ic! t!e rut! Co&&ission 'ill investi%ate, !ave alread(#een 4-e; re:ore- me-+, and &an( o" t!ese reported cases !ave even #een investi%ated #( t!e :ouse o" Representativesor t!e Senate. !us, t!e prescriptive periods o" t!ese /reported cases/ o" /lar%e scale corruption/ &a( !ave alread( #e%an to runsince t!ese ano&alies are pu#licl( $no'n and &a( #e dee&ed alread( discovered.* !ese prescriptive periods re"er to t!e cri&inalacts o" pu#lic o""icials under penal la's, and not to t!e recover( o" ill-%otten 'ealt! '!ic! under t!e Constitution is i&prescripti#le.+

Second, t!e ;arcos, Ra&os and Estrada ad&inistrations 'ere alread( investi%ated #( t!eir successor ad&inistrations. !is alone is

incontroverti#le proo" t!at t!e 6rro(o ad&inistration is not #ein% sin%led out "or investi%ation or prosecution.

!ird, all t!e past Presidents, 'it! t!e exception o" Presidents Ra&os, Estrada and 6rro(o, are alread( dead. !e possi#le'itnesses to alle%ed acts o" %ra"t and corruption durin% t!e Presidencies o" t!e deceased presidents &a( also #e dead orunavaila#le. In "act, t!e onl( livin% President '!ose ad&inistration !as not #een investi%ated #( its successor ad&inistration isPresident 6rro(o.

ourt!, t!e &ore recent t!e alle%ed acts o" %ra"t and corruption, t!e &ore readil( availa#le 'ill #e t!e 'itnesses, and t!e &ore easil(t!e 'itnesses can recall 'it! accurac( t!e relevant events. Inaction over ti&e &eans t!e loss not onl( o" 'itnesses #ut also o"&aterial docu&ents, not to &ention t!e loss o" pu#lic interest.

i"t!, t!e )-&ont! ti&e li&it %iven to t!e rut! Co&&ission prevents it "ro& investi%atin% ot!er past ad&inistrations. !ere is alsot!e constraint on t!e enor&ous resources needed to investi%ate ot!er past ad&inistrations. Just identi"(in% t!e transactions, locatin%relevant docu&ents, and loo$in% "or 'itnesses 'ould re<uire a '!ole #ureaucrac(.

!ese are not onl( reasona#le #ut also co&pellin% %rounds "or t!e rut! Co&&ission to prioriti5e t!e investi%ation o" t!e 6rro(oad&inistration. 'o prioritie based on reasonable and even compelling grounds is not to discriminate, but to act sensiblyand responsibly.

In an( event, t!ere is no violation o" t!e e<ual protection clause =ust #ecause t!e aut!orities "ocus t!eir investi%ation or prosecutionon one particular alle%ed la'-#rea$er, "or surel( a person accused o" ro##er( cannot raise as a de"ense t!at ot!er ro##ers li$e !i&all over t!e countr( are not #ein% prosecuted.8 2( t!e ver( nature o" an investi%ation or prosecution, t!ere &ust #e a "ocus onparticular act or acts o" a person or a %roup o" persons.

Indeed, al&ost ever( "act-"indin% #od( "ocuses its investi%ation on a speci"ic su#=ect &atter ̀ '!et!er it #e a speci"ic act, incident,event, situation, condition, person or %roup o" persons. !is speci"ic "ocus results "ro& t!e nature o" a "act-"indin% investi%ation,'!ic! is a necessar( and proper response to a speci"ic co&pellin% act, incident, event, situation, or condition involvin% a person or%roup o" persons. !us, t!e "act-"indin% co&&issions created under t!e previous 6rro(o ad&inistration !ad speci"ic "ocus> t!eeliciano Co&&ission "ocused on t!e Oa$'ood &utin(, t!e ;elo Co&&ission "ocused on extra-=udicial $illin%s, and t!e eQarosaCo&&ission "ocused on private ar&ies.

Si%ni"icantl(, t!e PC00 C!arter even speci"ies t!e persons to #e investi%ated "or t!e recover( o" ill-%otten 'ealt!. !us, Section)3a4 o" t!e PC00 C!arter provides>

Section ). !e Co&&ission s!all #e c!ar%ed 'it! t!e tas$ o" assistin% t!e President in re%ard to t!e "ollo'in% &atters>

3a4 !e recover( o" all ill-%otten 'ealt! accu&ulated #( "or&er President erdinand E. ;arcos, !is i&&ediate "a&il(,relatives, su#ordinates and close associates, '!et!er located in t!e P!ilippines or a#road, includin% t!e ta$eover orse<uestration o" all #usiness enterprises and entities o'ned or controlled #( t!e&, durin% !is ad&inistration, directl( ort!rou%! no&inees, #( ta$in% undue advanta%e o" t!eir pu#lic o""ice andFor usin% t!eir po'ers, aut!orit(, in"luence,connections or relations!ip.

3#4 x x x . 3E&p!asis supplied4

!e PC00 C!arter !as survived all constitutional attac$s #e"ore t!is Court, includin% t!e clai& t!at its Section )3a4 violates t!ee<ual protection clause. In 7irata v. Sandi%an#a(an,9 t!is Court cate%oricall( ruled t!at t!e PC00 C!arter /does not violate t!ee<ual protection clause and is not a #ill o" attainder or an ex post "acto la'./@

!is speci"ic "ocus o" "act-"indin% investi%ations is also true in t!e nited States. !us, t!e Ro#erts Co&&ission" ocused on t!ePearl :ar#or attac$, t!e arren Co&&ission8 "ocused on t!e assassination o" President Jo!n . Menned(, and t!e F11Co&&ission81 "ocused on t!e 11 Septe&#er )1 terrorist attac$s on t!e nited States. !ese "act-"indin% co&&issions 'erecreated 'it! speci"ic "ocus to assist t!e .S. President and Con%ress in cra"tin% executive and le%islative responses to speci"ic actsor events o" %rave national i&portance. Clearl(, "act-"indin% investi%ations #( t!eir ver( nature &ust !ave a speci"ic "ocus.






































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0ra"t and corruption cases #e"ore t!e 6rro(o ad&inistration !ave alread( #een investi%ated #( t!e previous ad&inistrations.President Cora5on 6<uino created t!e Presidential Co&&ission on 0ood 0overn&ent to recover t!e ill-%otten 'ealt! o" t!e;arcoses and t!eir cronies.8) President Josep! Estrada created t!e Sa%uisa% Co&&ission to investi%ate t!e P!ilippine Centennialpro=ects o" President idel Ra&os.8* !e %larin% acts o" corruption durin% t!e Estrada ad&inistration !ave alread( #een investi%atedresultin% in t!e conviction o" President Estrada "or plunder. !us, it stands to reason t!at t!e rut! Co&&ission s!ould %ive priorit(to t!e alle%ed acts o" %ra"t and corruption durin% t!e 6rro(o ad&inistration.

!e &a=orit( opinion clai&s t!at EO 1 violates t!e e<ual protection clause #ecause t!e 6rro(o ad&inistration #elon%s to a class o"

past ad&inistrations and t!e ot!er past ad&inistrations are not included in t!e investi%ation o" t!e rut! Co&&ission. !us, t!e&a=orit( opinion states>

In t!is re%ard, it &ust #e #orne in &ind t!at t!e 6rro(o ad&inistration is #ut =ust a &e&#er o" a class, t!at is, a class o" pastad&inistrations. It is not a class o" its o'n. No o c-e :+ +-mr+o m+r; +e-constitutes ar#itrariness '!ic!t!e e<ual protection clause cannot sanction. Suc! discri&inatin% di""erentiation clearl( rever#erates to la#el t!e co&&ission as ave!icle "or vindictiveness and selective retri#ution.

x x x

x x x T=e TC =::e Tr= CommoM, o be re o m+-+e o e+rc=6 =e r=, m o e<c-e =e o=er:+ +-mr+o. T=e TC m, + e+, =+e =e +=or; o e6+e + :+ +-mr+o. !ile reasona#leprioriti5ation is per&itted, it s!ould not #e ar#itrar( lest it #e struc$ do'n "or #ein% unconstitutional.

x x x

x x x To e<c-e =e e+rer +-mr+o =e 6e o "b++ -co" 4o- o; corm =e :eoer+me =+ =e bEec e<ece or-er o; + "+-ere :+r+ =o;./ x x x.

x x x

o reer+e, or-er or + c+c+o o mee =e rereme o coo+;, m c-e or embr+ce +:ero 4=o +r+; beo6 o =e c+. /Suc! a classi"ication &ust not #e #ased on existin% circu&stances onl(, or soconstituted as to preclude additions to t!e nu&#er included 'it!in a class, #ut &ust #e o" suc! a nature as to e&#race all t!ose '!o&a( !erea"ter #e in si&ilar circu&stances and conditions. urt!er&ore, all '!o are in situations and circu&stances '!ic! arerelative to t!e discri&inator( le%islation and '!ic! are indistin%uis!a#le "ro& t!ose o" t!e &e&#ers o" t!e class &ust #e #rou%!tunder t!e in"luence o" t!e la' and treated #( it in t!e sa&e 'a( as are t!e &e&#ers o" t!e class./ 3E&p!asis supplied4

!e &a=orit( opinion %oes on to su%%est t!at EO 1 could #e a&ended /to include t!e earlier past ad&inistrations/ to allo' it /o:+ =e e o re+o+bee +- o be + +ro o =e Coo./

!e &a=orit( opinionBs reasonin% is specious, illo%ical, i&practical, i&possi#le to co&pl(, and contrar( to t!e Constitution and 'ell-settled =urisprudence. o re<uire t!at /e+rer :+ +-mr+o/ &ust also #e included in t!e investi%ation o" t!e rut!Co&&ission, 'it! t!e rut! Co&&ission expressl( e&po'ered /o e6+e all :+ +-mr+o,/ #e"ore t!ere can #e avalid investi%ation o" t!e 6rro(o ad&inistration under t!e e<ual protection clause, is to prevent a#solutel( t!e investi%ation o" t!e

6rro(o ad&inistration under an( circu&stance.

!ile t!e &a=orit( opinion ad&its t!at t!ere can #e /re+o+be :ror+o/ o" past ad&inistrations to #e investi%ated, it not onl("ails to explain !o' suc! reasona#le prioriti5ation can #e &ade, it also proceeds to stri$e do'n EO 1 "or prioriti5in% t!e 6rro(oad&inistration in t!e investi%ation o" t!e rut! Co&&ission. 6nd '!ile ad&ittin% t!at t!ere can #e a valid classi"ication #ased onsu#stantial distinctions, t!e &a=orit( opinion inexplica#l( &a$es an( su#stantial distinction i&&aterial #( statin% t!at /Mo e<c-e=e e+rer +-mr+o =e 6e o "b++ -co" 4o- o; corm =e :eoer +me =+ =ebEec e<ece or-er o; + +-ere :+r+ =o;./

!e /e+rer past ad&inistrations/ prior to t!e 6rro(o ad&inistration cover t!e Presidencies o" E&ilio 6%uinaldo, ;anuel ue5on,Jose Laurel, Ser%io Os&eQa, ;anuel Roxas, Elpidio uirino, Ra&on ;a%sa(sa(, Carlos 0arcia, Diosdado ;acapa%al, erdinand;arcos, Cora5on 6<uino, idel Ra&os, and Josep! Estrada, a period spannin% 1) (ears or &ore t!an a centur(. 6ll t!esead&inistrations, plus t!e -(ear 6rro(o ad&inistration, alread( constitute t!e universe o" all past ad&inistrations, coverin% a totalperiod o" 111 (ears. 6ll t!ese /e+rer :+ +-mr+o/ cannot constitute =ust one class o" ad&inistrations #ecause i" t!e('ere to constitute =ust one class, t!en t!ere 'ould #e no ot!er class o" ad&inistrations. It is li$e sa(in% t!at since all citi5ens are!u&an #ein%s, t!en all citi5ens #elon% to =ust one class and (ou cannot classi"( t!e& as disa#led, i&poveris!ed, &ar%inali5ed,illiterate, peasants, "ar&ers, &inors, adults or seniors.

Classi"(in% t!e /e+rer :+ +-mr+o/ in t!e last 111 (ears as =ust one class is not %er&ane to t!e purpose o" investi%atin%possi#le acts o" %ra"t and corruption. !ere are prescriptive periods to prosecute cri&es. !ere are ad&inistrations t!at !ave









8/13/2019 G.R. No. 192935 December 7, 2010


alread( #een investi%ated #( t!eir successor ad&inistrations. !ere are also ad&inistrations t!at !ave #een su#=ected to severalCon%ressional investi%ations "or alle%ed lar%e-scale ano&alies. !ere are past Presidents, and t!e o""icials in t!eir ad&inistrations,'!o are all dead. !ere are past Presidents '!o are dead #ut so&e o" t!e o""icials in t!eir ad&inistrations are still alive. !us, allt!e /e+rer :+ +-mr+o/ cannot #e classi"ied as =ust one sin%le class _ /+ c+ o :+ +-mr+o/ #ecause‒

t!e( are not all si&ilarl( situated.

On t!e ot!er !and, =ust #ecause t!e Presidents and o""icials o" /e+rer :+ +-mr+o/ are no' all dead, or t!e prescriptiveperiods under t!e penal la's !ave all prescri#ed, does not &ean t!at t!ere can no lon%er #e an( investi%ation o" t!ese o""icials. !e

States ri%!t to recover t!e ill-%otten 'ealt! o" t!ese o""icials ism:recr:be.8+ Section 1, 6rticle ?I o" t!e 1@9 Constitutionprovides>

Section 1. !e ri%!t o" t!e State to recover properties unla'"ull( ac<uired #( pu#lic o""icials or e&plo(ees, "ro& t!e& or "ro& t!eirno&inees or trans"erees, s!all o be b+rre- b; :recr:o, lac!es or estoppel. 3E&p!asis supplied4

Le%all( and &orall(, an( ill-%otten 'ealt! since t!e Presidenc( o" 0en. E&ilio 6%uinaldo can still #e recovered #( t!e State. T=, =e Tr= Commo rere- o e6+e "e+rer :+ +-mr+o" =+ co- be e6+; e6+e-, =eTr= Commo m+; =+e o +r 4= =e re-ec; o Ge. !mo A6+-o.

6 "act-"indin% investi%ation o" /e+rer :+ +-mr+o,/ spannin% 111 (ears punctuated #( t'o 'orld 'ars, a 'ar "orindependence, and several re#ellions ̀ 'ould o#viousl( #e an i&possi#le tas$ to underta$e "or an ad !oc #od( li$e t!e rut!Co&&ission. o insist t!at /e+rer :+ +-mr+o/ &ust also #e investi%ated #( t!e rut! Co&&ission, to%et!er 'it! t!e

6rro(o ad&inistration, is utterl( #ere"t o" an( reasona#le #asis ot!er t!an to prevent a#solutel( t!e investi%ation o" t!e 6rro(oad&inistration. No nation on t!is planet !as even atte&pted to assi%n to one ad5hoc "act-"indin% #od( t!e investi%ation o" all its

senior pu#lic o""icials in t!e past 1 (ears.

!e &a=orit( opinionBs overridin% t!esis _ t!at /e+rer :+ +-mr+o/ #elon% to onl( one class and t!e( &ust all #e includedin t!e investi%ation o" t!e rut! Co&&ission, 'it! t!e rut! Co&&ission expressl( e&po'ered /o e6+e all :++-mr+o/ _ is even t!e 'ron% assertion o" discri&ination t!at is violative o" t!e e<ual protection clause. !e lo%ical andcorrect assertion o" a violation o" t!e e<ual protection clause is t!at t!e 6rro(o ad&inistration is #ein% investi%ated "or possi#le actso" %ra"t and corruption '!ile ot!er past ad&inistrations si&ilarl( situated 'ere not.

!us, in t!e leadin% case o" nited States v. 6r&stron%,8 decided in 18, t!e .S. Supre&e Court ruled t!at /to esta#lis! adiscri&ination e""ect in a race case, t!e clai&ant &ust s!o' t!at si&ilarl( situated individuals o" a di""erent race 'ere notprosecuted./88 6pplied to t!e present petitions, petitioners &ust esta#lis! t!at si&ilarl( situated o""icials o" ot!er past ad&inistrations'ere not investi%ated. :o'ever, t!e incontroverti#le and %larin% "act is t!at t!e ;arcoses and t!eir cronies 'ere investi%ated andprosecuted #( t!e PC00, President idel Ra&os and !is o""icials in t!e Centennial pro=ects 'ere investi%ated #( t!e Sa%uisa%Co&&ission, and President Josep! Estrada 'as investi%ated, prosecuted and convicted o" plunder under t!e 6rro(o ad&inistration.Indisputa#l(, t!e 6rro(o ad&inistration is not #ein% sin%led out "or investi%ation or prosecution #ecause ot!er past ad&inistrations

and t!eir o""icials 'ere also investi%ated or prosecuted.

In nited States v. 6r&stron%, t!e .S. Supre&e Court "urt!er stated t!at /KaG selective-prosecution clai& as$s a court to exercise =udicial po'er over a /special province/ o" t!e Executive,/89 citin% :ec$er v. C!ane(8@ '!ic! !eld t!at a decision '!et!er or not toindict /!as lon% #een re%arded

as t!e special province o" t!e Executive 2ranc!, inas&uc! it is t!e Executive '!o is c!ar%ed #( t!e Constitution to Hta$e Care t!att!e La's #e "ait!"ull( executed.B/8 !ese .S. cases alread( involved t!e prosecution o" cases #e"ore t!e %rand =ur( or t!e courts,'ell past t!e ad&inistrative "act-"indin% investi%ative p!ase.

In t!e present case, no one !as #een c!ar%ed #e"ore t!e prosecutor or t!e courts. !at petitioners 'ant t!is Court to do isinvalidate a &ere ad&inistrative "act-"indin% investi%ation #( t!e Executive #ranc!, an investi%ative p!ase prior to preli&inar(investi%ation. Clearl(, i" courts cannot exercise t!e ExecutiveBs /special province/ to decide '!et!er or not to indict, '!ic! is t!ee<uivalent o" deter&ination o" pro#a#le cause, 'it! %reater reason courts cannot exercise t!e ExecutiveBs /special province/ todecide '!at or '!at not to investi%ate "or ad&inistrative "act-"indin% purposes.

or t!is Court to exercise t!is /special province/ o" t!e President is to encroac! on t!e exclusive do&ain o" t!e Executive to executet!e la' in #latant violation o" t!e "inel( cra"ted constitutional separation o" po'er. 6n( un'arranted intrusion #( t!is Court into t!eexclusive do&ain o" t!e Executive or Le%islative #ranc! disrupts t!e separation o" po'er a&on% t!e t!ree co-e<ual #ranc!es andulti&atel( invites re-#alancin% &easures "ro& t!e Executive or Le%islative #ranc!.

6 clai& o" selective prosecution t!at violates t!e e<ual protection clause can #e raised onl( #( t!e part( adversel( a""ected #( t!ediscri&inator( act. In Nune5 v. Sandi%an#a(an,9 t!is Court declared>






















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"indin% investi%ation is conducted, t!e investi%ation #( necessit( &ust "ocus on t!e pu#lic o""icials involved in t!e transaction. It isridiculous "or an(one to as$ t!is Court to stop t!e investi%ation o" suc! pu#lic o""icials on t!e %round t!at past pu#lic o""icials o" t!esa&e ran$, '!o &a( !ave #een involved in si&ilar ano&alous transactions in t!e past, are not #ein% investi%ated #( t!e sa&e "act-"indin% #od(. o up!old suc! a lau%!a#le clai& is to %rant i&&unit( to all cri&inals, t!ro'in% out o" t!e 'indo' t!e constitutionalprinciple t!at /KpGu#lic o""ice is a pu#lic trust/9 and t!at /KpGu#lic o""icials and e&plo(ees &ust at all ti&es #e accounta#le to t!epeople./98

!en t!e Constitution states t!at pu#lic o""icials are /at all ti&es/ accounta#le to t!e people, it &eans at an( ti&e pu#lic o""icials can

#e !eld to account #( t!e people. Nonsensical clai&s, li$e t!e selective prosecution invo$ed in People v. dela Piedra, areunavailin%. I&possi#le conditions, li$e re<uirin% t!e investi%ation o" /e+rer :+ +-mr+o,/ are disallo'ed. 6ll t!ese "li&s(and dilator( excuses violate t!e clear co&&and o" t!e Constitution t!at pu#lic o""icials are accounta#le to t!e people /at all ti&es./

!e &a=orit( opinion 'ill also &ean t!at t!e PC00 C!arter _ '!ic! tas$ed t!e PC00 to recover t!e il l-%otten 'ealt! o" t!e;arcoses and t!eir cronies _ violates t!e e<ual protection clause #ecause t!e PCC0 C!arter speci"icall( &entions t!e ;arcosesand t!eir cronies. !e &a=orit( opinion reverses several decisions99 o" t!is Court up!oldin% t!e constitutionalit( o" t!e PCC0C!arter, endan%erin% over t'o decades o" !ard 'or$ in recoverin% ill-%otten 'ealt!.

O&inousl(, t!e &a=orit( opinion provides "ro& !ereon ever( ad&inistration a cloa$ o" i&&unit( a%ainst an( investi%ation #( itssuccessor ad&inistration. !is 'ill institutionali5e i&punit( in trans%ressin% anti-corruption and ot!er penal la's. Sadl(, t!e &a=orit(opinion &a$es it i&possi#le to #rin% %ood %overnance to our %overn&ent.

!e rut! Co&&ission is onl( a "act-"indin% #od( to provide t!e President 'it! "acts so t!at !e can understand '!at !appened incertain %overn&ent transactions durin% t!e previous ad&inistration. !ere is no preli&inar( investi%ation (et and t!e rut!

Co&&ission 'ill never conduct one. No one is even #ein% c!ar%ed #e"ore t!e prosecutor or t!e O&#uds&an. !is Court !asconsistentl( re"used to inter"ere in t!e deter&ination #( t!e prosecutor o" t!e existence o" pro#a#le cause in a preli&inar(investi%ation.9@ it! &ore reason s!ould t!is Court re"use to inter"ere in t!e purel( "act-"indin% 'or$ o" t!e rut! Co&&ission, '!ic!'ill not even deter&ine '!et!er t!ere is pro#a#le cause to c!ar%e an( person o" a cri&e.

2e"ore t!e President executes t!e la', !e !as t!e ri%!t, and even t!e dut(, to $no' t!e "acts to assure !i&sel" and t!e pu#lic t!at!e is correctl( executin% t!e la'. !is Court !as no po'er to prevent t!e President "ro& $no'in% t!e "acts to understand certain%overn&ent transactions in t!e Executive #ranc!, transactions t!at &a( need to #e revie'ed, revived, corrected, ter&inated orco&pleted. I" t!is Court can do so, t!en it can also prevent t!e :ouse o" Representatives or t!e Senate "ro& conductin% aninvesti%ation, in aid o" le%islation, on t!e "inancial transactions o" t!e Arroyo administration, on the ground of violation of the equal

protection clause. nless, of course, the !ouse or the "enate attempts to do the impossi#le $ conduct an investigation on the financialtransactions of %earlier past administrations& since the Presidency of 'eneral (milio Aguinaldo. )ndeed, under the majority opinion, neither the

!ouse nor the "enate can conduct any investigation on any administration, past or present, if &earlier past administrations& are not included in the

legislative investigation.

In s!ort, t!e &a=orit( opinionBs re<uire&ents t!at EO 1 s!ould also include /e+rer past ad&inistrations,/ 'it! t!e rut! Co&&issione&po'ered /o e6+e all :+ +-mr+o,/ to co&pl( 'it! t!e e<ual protection clause, is a re<uire&ent t!at is not onl(illo%ical and i&possi#le to co&pl(, it also allo's t!e i&punit( to co&&it %ra"t and corruption and ot!er cri&es under our penal la's.!e &a=orit( opinion co&pletel( i%nores t!e constitutional principle t!at pu#lic o""ice is a pu#lic trust and t!at pu#lic o""icials are at allti&es accounta#le to t!e people.

6 inal ord

!e incu&#ent President 'as over'!el&in%l( elected #( t!e ilipino people in t!e 1 ;a( )1 elections #ased on !is announcedpro%ra& o" eli&inatin% %ra"t and corruption in %overn&ent. 6s t!e Solicitor 0eneral explains it, t!e incu&#ent President !as pled%edto t!e electorate t!at t!e eli&ination o" %ra"t and corruption 'ill start 'it! t!e investi%ation and prosecution o" t!ose '!o &a( !aveco&&itted lar%e-scale corruption in t!e previous ad&inistration.9 Durin% t!e election ca&pai%n, t!e incu&#ent President identi"ied%ra"t and corruption as t!e &a=or cause o" povert( in t!e countr( as depicted in !is ca&pai%n t!e&e /$un% 'alan% corrupt, 'alan%&a!irap./ It 'as lar%el( on t!is ca&pai%n pled%e to eli&inate %ra"t and corruption in %overn&ent t!at t!e electorate over'!el&in%l(voted "or t!e incu&#ent President. !e ilipino people do not 'ant to re&ain "orever at t!e #otto& t!ird o" 19@ countries ran$ed inter&s o" %overn&ents "ree "ro& t!e scour%e o" corruption.@

Neit!er t!e Constitution nor an( existin% la' prevents t!e incu&#ent President "ro& redee&in% !is ca&pai%n pled%e to t!e ilipinopeople. In "act, t!e incu&#ent PresidentBs ca&pai%n pled%e is &erel( a reiteration o" t!e #asic State polic(, ens!rined in Section )9,

6rticle II o" t!e Constitution, t!at>

ection >@ . !e State s!all &aintain !onest( and inte%rit( in t!e pu#lic service and ta$e positive and e""ective &easures a%ainst%ra"t and corruption. 3E&p!asis supplied4

!e incu&#ent PresidentBs ca&pai%n pled%e also reiterates t!e constitutional principle t!at /KpGu#lic o""ice is a pu#lic trust/@1 and t!at/KpGu#lic o""icers and e&plo(ees &ust at all ti&es #e accounta#le to t!e people./@)
























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!is Court, in stri$in% do'n EO 1 creatin% t!e rut! Co&&ission, overrules t!e &ani"est 'ill o" t!e ilipino people to start t!e di""iculttas$ o" puttin% an end to %ra"t and corruption in %overn&ent, denies t!e President !is #asic constitutional po'er to deter&ine t!e"acts in !is "ait!"ul execution o" t!e la', and suppresses '!atever trut! &a( co&e out in t!e purel( "act-"indin% investi%ation o" t!erut! Co&&ission. !is Court, in invo$in% t!e e<ual protection clause to stri$e do'n a purel( "act-"indin% investi%ation, %rantsi&&unit( to t!ose '!o violate anti-corruption la's and ot!er penal la's, renders &eanin%less t!e constitutional principle t!at pu#lico""ice is a pu#lic trust, and &a$es pu#lic o""icials unaccounta#le to t!e people at an( ti&e.

Ironicall(, t!is Court, and even su#ordinates o" t!e President in t!e Executive #ranc!, routinel( create all (ear round "act-"indin%

#odies to investi%ate all $inds o" co&plaints a%ainst o""icials and e&plo(ees in t!e Judiciar( or t!e Executive #ranc!, as t!e case&a( #e. !e previous President created t!rou%! executive issuances t!ree purel( "act-"indin% co&&issions si&ilar to t!e rut!Co&&ission. et t!e incu&#ent President, t!e onl( o""icial &andated #( t!e Constitution to execute "ait!"ull( t!e la', is no' denied#( t!is Court t!e po'er to create t!e purel( "act-"indin% rut! Co&&ission.

:istor( 'ill record t!e rulin% toda( o" t!e CourtBs &a=orit( as a severe case o" =udicial overreac! t!at &ade t!e incu&#ent Presidenta di&inis!ed Executive in an a""ront to a co-e<ual #ranc! o" %overn&ent, crippled our alread( c!allen%ed =ustice s(ste&, andcrus!ed t!e !opes o" t!e lon% su""erin% ilipino people "or an end to %ra"t and corruption in %overn&ent.

6ccordin%l(, I vote to DIS#ISS t!e petitions.

ANTONIO T. CARIO 6ssociate Justice

$oooe

1 6lso $no'n as t!e 6d&inistrative Code o" 1@9. One o" EO 1Bs :ERE6S clauses reads> /:ERE6S, 2oo$ III,C!apter 1, Section *1 o" Executive Order No. )), ot!er'ise $no'n as t!e Revised 6d&inistrative Code o" t!eP!ilippines, %ives t!e President t!e continuin% aut!orit( to reor%ani5e t!e O""ice o" t!e President./

) Do&in%o v. a&ora, ++ P!il. 9, 1* 3)*4.

* E&p!asis supplied.

+ E&p!asis supplied. President 6<uino too$ !is oat! in ilipino.

'odrigue:, et al. v. antos 3ia:, et al., 11 P!il. 9)*, 9)9-9)@ 318+4.

8 SN, 9 Septe&#er )1, pp. 8-9.

9 No. L-))9+, )9 Nove&#er 19, 8@ SCR6 , 1+.

@ Section *1, C!apter 1, itle III, 2oo$ III o" EO )), <uoted on pa%e ).

Section )), C!apter @, itle II, 2oo$ III o" EO )) reads>

Section )). !ffice of the President Proper. 314 !e O""ice o" t!e President Proper s!all consist o" t!e PrivateO""ice, t!e Executive O""ice, t!e Co&&on Sta"" Support S(ste&, and t!e Presidential Special

6ssistantsF6dvisers S(ste&A

3)4 !e Executive O""ice re"ers to t!e O""ices o" t!e Executive Secretar(, Deput( Executive Secretaries and 6ssistant Executive SecretariesA

3*4 !e Co&&on Sta"" Support S(ste& e&#races t!e o""ices or units under t!e %eneral cate%ories o"develop&ent and &ana%e&ent, %eneral %overn&ent ad&inistration and internal ad&inistrationA and

3+4 !e Presidential Special 6ssistantsF6dvisers S(ste& includes suc! special assistants or advisers as &a( #eneeded #( t!e President./ 3E&p!asis supplied4

1 Section ))3+4, Id.

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11 Section +93)4, C!apter 8, 2oo$ 7 o" EO )) provides>

Section +9. Disciplinar( Jurisdiction. -

x x x

3)4 !e Secretaries and !eads o" a%encies and instru&entalities, provinces, cities and &unicipalities s!all !ave =urisdiction to investi%ate and decide &atters involvin% disciplinar( action a%ainst o""icers and e&plo(ees undert!eir =urisdiction. x x x. 3E&p!asis supplied4

1) Para%rap! 1 o" PD 1+18, as a&ended, provides>

1. T=e re-e o =e =::e =+ =+e co6 +=or; o reor6+e =e N+o+Goerme. In exercisin% t!is aut!orit(, t!e President s!all #e %uided #( %enerall( accepta#le principles o"%ood %overn&ent and responsive national develop&ent, includin% #ut not li&ited to t!e "ollo'in% %uidelines "ora &ore e""icient, e""ective, econo&ical and develop&ent-oriented %overn&ental "ra&e'or$>

3a4 ;ore e""ective plannin%, i&ple&entation, and revie' "unctionsA

3#4 0reater decentrali5ation and responsiveness in t!e decision-&a$in% processA

3c4 urt!er &ini&i5ation, i" not eli&ination, o" duplication or overlappin% o" purposes, "unctions,activities, and pro%ra&sA

3d4 urt!er develop&ent o" as standardi5ed as possi#le &inisterial, su#-&inisterial and corporateor%ani5ational structuresA

3e4 urt!er develop&ent o" t!e re%ionali5ation processA and

3"4 urt!er rationali5ation o" t!e "unctions o" and ad&inistrative relations!ip a&on% %overn&ententities.

or purposes o" t!is Decree, t!e covera%e o" t!e continuin% aut!orit( o" t!e President to reor%ani5e s!all #einterpreted to enco&pass all a%encies, entities, instru&entalities, and units o" t!e National 0overn&ent,includin% all %overn&ent-o'ned or controlled corporations, as 'ell as t!e entire ran%e o" t!e po'ers, "unctions,

aut!orities, ad&inistrative relations!ips, and related aspects pertainin% to t!ese a%encies, entities,instru&entalities, and units.

). or t!is purpose, t!e President &a(, at !is discretion, ta$e t!e "ollo'in% actions>

3a4 0roup, coordinate, consolidate or inte%rate depart&ents, #ureaus, o""ices, a%encies,instru&entalities and "unctions o" t!e %overn&entA

3#4 6#olis! depart&ents, o""ices, a%encies or "unctions '!ic! &a( not #e necessar(, or create t!ose'!ic! are necessar(, "or t!e e""icient conduct o" %overn&ent "unctions services and activitiesA

3c4 rans"er "unctions, appropriations, e<uip&ent, properties, records and personnel "ro& onedepart&ent, #ureau, o""ice, a%enc( or instru&entalit( to anot!erA

3d4 Create, classi"(, co&#ine, split, and a#olis! positionsA

3e4 Standardi5e salaries, &aterials and e<uip&entA

3"4 Create, a#olis!, %roup, consolidate, &er%e, or inte%rate entities, a%encies, instru&entalities, andunits o" t!e National 0overn&ent, as 'ell as expand, a&end, c!an%e, or ot!er'ise &odi"( t!eirpo'ers, "unctions and aut!orities, includin%, 'it! respect to %overn&ent-o'ned or controlledcorporations, t!eir corporate li"e, capitali5ation, and ot!er relevant aspects o" t!eir c!artersA and

3%4 a$e suc! ot!er related actions as &a( #e necessar( to carr( out t!e purposes and o#=ectives o"t!is Decree. 3E&p!asis supplied4





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1* Para%rap! 1 3c4 and 3e4, PD 1+18, as a&ended.

1+ !e clause states> /:ERE6S, t!e transition to'ards t!e parlia&entar( "or& o" %overn&ent 'ill necessitate "lexi#ilit( int!e or%ani5ation o" t!e national %overn&ent./

1 6urillo v. Ra#i, ++1 P!il. 119 3))4A Drilon v. Li&, 0.R. No. 11)+9, + 6u%ust 1+, )* SCR6 1*A0ondano v.ilvosa, etc. et al., 9 P!il. 1+* 314.

18 Section )314, 6rticle 7I, 1@9 Constitution.

19 %ssociation of mall (andowners in the Philippines, 6nc. v. ecretary of %grarian 'eform, 0.R. No. 9@9+), 1+ Jul(1@, 19 SCR6 *+*.

1@ See Special Provision No. ), 0eneral 6ppropriations 6ct o" )1 or Repu#lic 6ct No. 9.

1 SN, 9 Septe&#er )1, p. 81.

) 3oran v. &+ecutive -udge (uc:on, Jr., 0.R. No. 11*++, )8 Septe&#er )8, * SCR6 18.

)1 Id.

)) 0.R. No. 19@*, * Dece&#er ), 88 SCR6 +, citin% 3ole Philippines 6nc. v. &steva, 0.R. No. 18111, *Nove&#er )8, SCR6 **).

)* Id. at 9-91.

)+ Section 8, C!apter 1*, 2oo$ I7 o" EO )) &erel( provides>

Section 8. %pproval of other types of #overnment Contracts. W 6ll ot!er t(pes o" %overn&ent contracts '!ic!are not 'it!in t!e covera%e o" t!is C!apter s!all, in t!e a#sence o" a special provision, #e executed 'it! t!eapproval o" t!e Secretar( or #( t!e !ead o" t!e #ureau or o""ice !avin% control o" t!e appropriation a%ainst'!ic! t!e contract 'ould create a c!ar%e. Suc! contracts s!all #e processed and approved in accordance 'it!existin% la's, rules and re%ulations.

) !ttp>FF'''.&#.co&.p!FnodeF)98+1Fo&#ud, accessed on 1 Nove&#er )1.

)8 Section 1, Rule 11), Rules o" Court.

)9 /6n 6ct Providin% "or t!e unctional and Structural Or%ani5ation o" t!e O""ice o" t!e O&#uds&an, and "or Ot!erPurposes./ 6lso $no'n as /!e O&#uds&an 6ct o" 1@./

)@ Repu#lic 6ct No. @)+, entitled /6n 6ct urt!er De"inin% t!e Jurisdiction o" t!e Sandi%an#a(an, 6&endin% or t!ePurpose Presidential Decree No. 188, as 6&ended, Providin% unds !ere"ore, and or Ot!er Purposes./ 6pproved on e#ruar( 19.

) Section 1*314, 6rticle ?I, Constitution.

* 0.R. No. 19+9, 1* 6pril )+, +)9 SCR6 +8.

*1 Id. at 9.

*) Id.

** People vs. 0orial , +1 P!il. *1 3)14.

*+ 6n 6ct Esta#lis!in% !e P!ilippine National Police nder 6 Reor%ani5ed Depart&ent o" Interior and Local 0overn&ent 6nd or Ot!er Purposes. 6lso $no'n as t!e P!ilippine National Police La' or t!e Depart&ent o" Interior and Local0overn&ent 6ct o" 1.














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8/13/2019 G.R. No. 192935 December 7, 2010


* Section *, C!apter I, itle III, 2oo$ I7 o" EO )) provides>

Section *. Powers and 4unctions. - o acco&plis! its &andate, t!e Depart&ent 3DOJ4 s!all !ave t!e "ollo'in%po'ers and "unctions>

314 x x x

3)4 Investi%ate t!e co&&ission o" cri&es, prosecute o""enders and ad&inister t!e pro#ation and corrections(ste&A

x x x.

*8 SN, )@ Septe&#er )1, pp. +1-+).

*9 Section +83)4, C!apter 9, 2oo$ 7, EO )).

*@ Section 1, Rule )1 o" t!e Rules o" Court provides>

SEC. 1. ubpoena and ubpoena duces tecum. - Su#poena is a process directed to a person re<uirin% !i& toattend and to testi"( at t!e !earin% or trial o" an action, or + +; e6+o co-ce- b; com:ee+=or;, or "or t!e ta$in% o" !is deposition. It &a( also re<uire !i& to #rin% 'it! !i& an( #oo$s, docu&ents, orot!er t!in%s under !is control, in '!ic! case it is called asubpoena duces tecum. 3E&p!asis supplied4

* Section , Rule )1 o" t!e Rules o" Court provides>

SEC. . Coem:. ailure #( an( person 'it!out ade<uate cause to o#e( a su#poena served upon !i& s!all#e dee&ed a conte&pt o" court "ro& '!ic! t!e su#poena is issued. I =e b:oe+ 4+ o e- b; +cor, =e -obe-ece =ereo =+ be :=e- +ccor-+ce 4= =e +::c+be +4 or Re.3E&p!asis supplied4

+ In s!arp contrast, Section )8314, 6rticle 7I o" t!e Constitution provides> /Ever( #ill passed #( t!e Con%ress s!alle&#race onl( one su#=ect '!ic! s!all #e expressed in t!e title t!ereo"./ !us, t!e title o" a #ill &ust express t!e su#=ect o"t!e #ill.

+1 it! apolo%ies to illia& S!a$espeare. !ese are t!e lines in 'omeo and -uliet > /!atBs in a na&e !at '!ic! 'e

call a rose #( an( ot!er na&e 'ould s&ell as s'eet./

+) Created #( Presidential Decree No. 1@@8 dated 1+ Octo#er 1@*.

+* !e ;a=orit( Opinion o" t!e 6%rava 2oard reco&&ended "or prosecution )8 na&ed individuals, includin% 0en. a#ian7er. !e ;inorit( Opinion o" C!airperson Cora5on 6%rava reco&&ended "or prosecution onl( 9 na&ed individuals,excludin% 0en. 7er.

++ Excludin% t!ose c!ar%ed as /Jo!n Does./

+ One o" t!e accused died durin% t!e trial and t!ree re&ained at lar%e.

+8 7irata v. Sandi%an#a(an, 0.R. No. @8)8, 1 Octo#er 11, )) SCR6 8@A PC00 v. PeQa, )* P!il. * 31@@4A and2aseco v. PC00, )*+ P!il. 1@ 31@94.

+9 6rticle , in relation to 6rticles )11-6 and )19, o" t!e Revised Penal Code.

+@ Section 11, R6 No. *1.

+ Section 1, 6ct No. **)8.

Section ), EO 1.

































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1 Section )3#4, EO 1.

) Id.

* See People v. 3u8ue, 0.R. No. 1)@, 1* 6u%ust 1), )1) SCR6 89.

+ Section 1, 6rticle ?I, Constitution.

Section 1+ o" EO 1 provides t!at /t!e Co&&ission s!all acco&plis! its &ission on or #e"ore Dece&#er *1, )1)./

8 In People v. dela Piedra, +* P!il. *1, + 3)14, t!e Court stated, /!e prosecution o" one %uilt( person '!ile ot!erse<uall( %uilt( are not prosecuted, !o'ever, is not, #( itsel", a denial o" t!e e<ual protection o" t!e la's./

9 0.R. No. @8)8, 1 Octo#er 11, )) SCR6 8@.

@ Id. at 8@. 3E&p!asis supplied4

Created #( President ran$lin Roosevelt.

8 Created #( President L(ndon Jo!nson.

81 Created t!rou%! la' #( t!e .S. Con%ress.

8) Executive Order No. 1, dated )@ e#ruar( 1@8.

8* 6d&inistrative Order No. * Creatin% an 6d-!oc and Independent Citi5ensB Co&&ittee to Investi%ate 6ll t!e acts andCircu&stances Surroundin% P!ilippine Centennial Pro=ects, Includin% its Co&ponent 6ctivities, dated )+ e#ruar( 1.

8+ Even prior to t!e 1@9 Constitution, pu#lic o""icials could not ac<uire o'ners!ip o" t!eir ill-%otten 'ealt! #( prescription.Section 11 o" Repu#lic 6ct No. 1*9, or t!e (aw on 4orfeiture of 6ll5#otten Wealth enacted on 1@ June 18, provides>

Section 11. (aws on prescription. W !e la's concernin% ac<uisitive prescription and li&itation o" actionscannot #e invo$ed #(, nor s!all t!e( #ene"it t!e respondent, in respect o" an( propert( unla'"ull( ac<uired #(!i&.

nder 6rticle 11** o" t!e Ne' Civil Code, /K&Gova#les possessed t!rou%! a cri&e can never #e ac<uiredt!rou%! prescription #( t!e o""ender./ 6nd under 6rticle 18 o" t!e Spanis! Civil Code o" 1@@, /o'ners!ip o"personal propert( stolen or ta$en #( ro##er( cannot #e ac<uired #( prescription #( t!e t!ie" or ro##er, or !isacco&plices, or accessories, unless t!e cri&e or &isde&eanor or t!e penalt( t!ere"or and t!e action to en"orcet!e civil lia#ilit( arisin% "ro& t!e cri&e or &isde&eanor are #arred #( prescription./

8 19 .S. +8, decided 1* ;a( 18. !e .S. Supre&e Court reiterated t!is rulin% in nited States v. 2ass, *8 .S.@8) 3))4, a per curia& decision.

88 19 .S. +8, +8.

89 Id. at +8+.

8@

+9 .S. @)1 31@4.

8 Id. at @*).

9 19 P!il. +9, +)* 31@)4. !is rulin% 'as reiterated in Cit( o" ;anila v. La%uio, + P!il. )@ 3)4A ;e=ia v. Pa&aran,)+* P!il. 8 31@4A 2autista v. Juinio, )1) P!il. *9 31@+4A and Calu#a<ui# v. Sandi%an#a(an, )) P!il. @19 31@)4.

91 +* P!il. *1 3)14.

9) Id. at +-8.













































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9* 0.R. No. 18@1@, ) ;arc! ), @ SCR6 +.

9+ 0.R. No. 19*198, )8 6u%ust )@, 8* SCR6 *+1.

9 Section 1, 6rticle ?I, Constitution.

98 Id.

99 Supra, note +8.

9@ See Spouses 6duan v. Levi C!on%, 0.R. No. 19)98, 1* Jul( ), ) SCR6 @A CP2 v. Loo(u$o, 0.R. No.18**9, )@ Septe&#er )9, *+ SCR6 *))A irst o&enBs Credit Corporation v. Pere5, 0.R. No. 18)8, 1 June)8, + SCR6 99+A and Dupas<uier v. Court o" 6ppeals, +* P!il. 1 3)14.

9 ;e&orandu& "or Respondents, p. 1.

@ !e )1 ransparenc( International Corruption Index ran$s t!e P!ilippines at 1*+ out o" 19@ countries. See!ttp>F'''.transparenc(.or%Fpolic(Vresearc!Fsurve(sVindicesFcpiF)1Fresults, accessed on 1* Nove&#er )1.

@1 Section 1, 6rticle ?I, Constitution.

@) Id.


DISS!NTING OINION

CARIO #ORAL!S, J.:

6ssailed "or #ein% unconstitutional in t!e present consolidated cases is Executive Order 3EO4 No. 1 o" Jul( *, )1 t!at created t!eP!ilippine rut! Co&&ission o" )1 3rut! Co&&ission4.

In issue is '!et!er EO No. 1 violates t!e Constitution in t!ree 'a(s, vi:., 3i4 "or usurpin% t!e po'er o" Con%ress to create pu#lico""ice and appropriate pu#lic "unds, 3ii4 "or intrudin% into t!e independence o" t!e O""ice o" t!e O&#uds&an, and 3iii4 "or in"rin%in% ont!e e<ual protection clause 'it! its li&ited scope o" investi%ation.

!e ponencia su#&its t!e "ollo'in% "indin%s and conclusions '!ic! !ave #een s(nt!esi5ed>

1. !e rut! Co&&ission is an ad hoc #od( "or&ed under t!e O""ice o" t!e President.<avvphD< It !as all t!e po'ers o" aninvesti%ative #od( under t!e 6d&inistrative Code.1 It is a "act-"indin% #od(, and not a <uasi-=udicial #od(A

). !e President !as t!e po'er to create a ne' o""ice li$e t!e rut! Co&&ission. !e po'er in!eres in !is po'ers asC!ie" Executive and sprin%s "ro& t!e constitutional dut( to "ait!"ull( execute t!e la's.) Ot!er'ise stated, t!e President!as t!e po'er to conduct investi%ations to aid !i& in ensurin% t!at la's are "ait!"ull( executed. It does not e&anate "ro&t!e PresidentBs po'er o" control under t!e Constitution,* nor #( virtue o" t!e po'er to reor%ani5e under t!e 6d&inistrativeCode+ '!ic! pertains to certain &odi"ications o" existin% o""ices, nor #( aut!orit( o" a stale la' %overnin% reor%ani5ationo" t!e national %overn&entA

*. !ere is no trans%ression o" t!e le%islative po'er to appropriate pu#lic "unds since '!at is involved is onl( an allot&entor allocation o" existin% "unds t!at !ave alread( #een appropriated and '!ic! s!all e<uall( #e su#=ect to auditin% rulesA

+. !e rut! Co&&ission does not duplicate, supersede or erode t!e po'ers and "unctions o" t!e O""ice o" t!eO&#uds&an and t!e Depart&ent o" Justice, since its investi%ative "unction co&ple&ents t!e t'o o""icesB investi%ativepo'er '!ic! is not exclusive. !is investi%ative "unction is not a$in to t!e conduct o" preli&inar( investi%ation o" certaincases, over '!ic! t!e O&#uds&an exercises pri&ar( =urisdictionA and











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8/13/2019 G.R. No. 192935 December 7, 2010


. EO No. 1 violates t!e e<ual protection clause ens!rined in t!e Constitution,8 "or it sin%les out t!e previousad&inistration as t!e sole su#=ect o" investi%ation.

Sustainin% onl( t!e "i"t! %round t!at t!e EO violates t!e e<ual protection clause, t!e ponencia disposes>

:EREORE, t!e petition is 3sic4 GRANT!D. Executive Order No. 1 is !ere#( declared UNCONSTITUTIONALinso"ar as it isviolative o" t!e e<ual protection clause o" t!e Constitution.

6s also pra(ed "or, t!e respondents are en=oined "ro& i&ple&entin% 3sic4 and operatin% t!e rut! Co&&ission.93underscorin%supplied4

I su#&it t!at t!e petitions s!ould #e DIS;ISSED.

It #ears notin% at t!e outset t!at none o" t!e petitioners properl( raises t!e issue o" e<ual protection o" t!e la's.

eoer G.R. No. 19303%, 4= e6+ +-6 + e6+or, c+o :ro:er; +er =e e+ :roeco c+m o =e:reo +-mr+o. !ile le%islators !ave locus standi in certain cases, t!eir le%al standin% as such is reco%ni5ed onl(inso"ar as t!e assailed issuance a""ects t!eir "unctions as le%islators. In t!e a#sence o" a clai& t!at t!e issuance in <uestion violatedt!e ri%!ts o" petitioner-le%islators or i&per&issi#l( intruded into t!e do&ain o" t!e Le%islature, t!e( !ave no le%al standin% to institutet!e present action in t!eir capacit( as &e&#ers o" Con%ress.@

No dou#t, le%islators are allo'ed to sue to <uestion t!e validit( o" an( o""icial action upon a clai& o" usurpation o" le%islativepo'er . !at is '!(, not ever( ti&e t!at a Senator or a Representative invo$es t!e po'er o" =udicial revie', t!e Court auto&aticall(clot!es t!e& 'it! locus standi .1 !e Court exa&ines "irst, as t!e ponencia did, i" t!e petitioner raises an issue pertainin% to anin=ur( to Con%ress as an institution or a derivative in=ur( to &e&#ers t!ereo",11 #e"ore proceedin% to resolve t!at particular issue.

!e peculiarit( o" t!e locus standi o" le%islators necessaril( con"ines t!e ad=udication o" t!eir petition onl( on &atters t!at tend toi&pair t!e exercise o" t!eir o""icial "unctions. In one case, t!e Court ruled>

e "ind t!at a&on% t!e petitioners, onl( Senator Pi&entel !as t!e le%al standin% to "ile t!e instant suit. !e ot!er petitioners&aintain t!eir standin% as advocates and de"enders o" !u&an ri%!ts, and as citi5ens o" t!e countr(. !e( !ave not s!o'n, !o'ever,t!at t!e( !ave sustained or 'ill sustain a direct in=ur( "ro& t!e non-trans&ittal o" t!e si%ned text o" t!e Ro&e Statute to t!e Senate.!eir contention t!at t!e( 'ill #e deprived o" t!eir re&edies "or t!e protection and en"orce&ent o" t!eir ri%!ts does not persuade.!e Ro&e Statute is intended to co&ple&ent national cri&inal la's and courts. Su""icient re&edies are availa#le under our nationalla's to protect our citi5ens a%ainst !u&an ri%!ts violations and petitioners can al'a(s see$ redress "or an( a#use in our do&esticcourts.

6s re%ards Senator Pi&entel, it !as #een !eld t!at to t!e extent t!e po'ers o" Con%ress are i&paired, so is t!e po'er o" eac!&e&#er t!ereo", since !is o""ice con"ers a ri%!t to participate in t!e exercise o" t!e po'ers o" t!at institution. !us, le%islators !avet!e standin% o m++ o+e =e :rero6+e, :o4er +- :re6e ee- b; =e Coo =er oce and areallo'ed to sue to <uestion t!e validit( o" an( o""icial action 4=c= =e; c+m r6e =er :rero6+e + e6+or. !epetition at #ar invo$es t!e po'er o" t!e Senate to %rant or 'it!!old its concurrence to a treat( entered into #( t!e executive #ranc!,in t!is case, t!e Ro&e Statute. !e petition see$s to order t!e executive #ranc! to trans&it t!e cop( o" t!e treat( to t!e Senate toallo' it to exercise suc! aut!orit(. Senator Pi&entel, as &e&#er o" t!e institution, certainl( !as t!e le%al standin% o +er c=+=or; o =e Se+e.1) 3e&p!asis and underscorin% supplied4

2reac! o" t!e e<ual protection clause, as presentl( raised #( petitioner-le%islators on behalf of t!e Executive Depart&ent o" t!ei&&ediate past ad&inistration, !as not!in% to do 'it! t!e i&pair&ent o" t!e po'ers o" Con%ress. !us, 'it! respect to t!e issuein Pimentel, -r. v. &+ec. ecretary &rmita1* t!at did not involve an( i&pair&ent o" t!e prero%atives o" Con%ress, so&e Senators '!o&erel( invo$ed t!eir status as le%islators 'ere not %ranted standin%.

;oreover, petitioner-le%islators cannot ta$e t!e cud%els "or t!e previous ad&inistrationFs, unless t!e( ad&it t!at t!e( are

&aintainin% a con"idential relation 'it! itFt!e& or actin% as advocates o" t!e ri%!ts o" a non-part( '!o see$s access to t!eir &ar$etor "unction.1+

T=e :eoer G.R. No. 192935, Lo Br+o6o, -oe o r+e =e e o e+ :roeco. :is ;e&orandu& &entionsnot!in% a#out e<ual protection clause.1 !ile t!e ponencia /"inds reason in 2irao%oBs assertion t!at t!e petition covers &atters o"transcendental i&portance,/18 not even !is success"ul invocation o" transcendental i&portance can pus! t!e Court into resolvin% anissue '!ic! !e never raised in !is petition.

On t!e "ore%oin% score alone, t!e ponencia s!ould not !ave dealt 'it! t!e issue o" e<ual protection.19





































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Suc! #arriers not'it!standin%, t!e clai& o" #reac! o" t!e e<ual protection clause "ails to !urdle t!e !i%!er #arrier o" &erit.

!*UAL ROT!CTION O$ T! LA/S

!e ponencia !olds t!at t!e previous ad&inistration !as #een denied e<ual protection o" t!e la's. o it, /KtGo restrict t!e scope o"t!e co&&issionBs investi%ation to said particular ad&inistration constitutes ar#itrariness '!ic! t!e e<ual protection clause cannotsanction./1@

I "ind not!in% ar#itrar( or unreasona#le in t!e rut! Co&&issionBs de"ined scope o" investi%ation.

In issues involvin% t!e e<ual protection clause, t!e test developed #( =urisprudence is t!at o" re+o+bee, '!ic! !as "ourre<uisites> 314 !e classi"ication rests on su#stantial distinctionsA 3)4 It is %er&ane to t!e

purposes o" t!e la'A 3*4 It is not li&ited to existin% conditions onl(A and 3+4 It applies e<uall( to all &e&#ers o" t!e sa&e class.1

T=e c+c+o re ob++ -co

Reasona#leness s!ould consider t!e nature o" t!e trut! co&&ission '!ic!, as "ound #( t!e ponencia, e&anates "ro& t!e po'er o"t!e President to conduct investi%ations to aid !i& in ensurin% t!e "ait!"ul execution o" la's. !e ponencia explains t!at t!eExecutive Depart&ent is %iven &uc! lee'a( in ensurin% t!at our la's are "ait!"ull( executed. It adds>

It s!ould #e stressed t!at t!e purpose o" allo'in% ad hoc investi%atin% #odies to exist is to allo' an in<uir( into &atters '!ic! t!ePresident is entitled to $no' so t!at !e can #e properl( advised and %uided in t!e per"or&ance o" !is duties relative to t!e executionand en"orce&ent o" t!e la's o" t!e land. 6nd i" !istor( is to #e revisited, t!is 'as also t!e o#=ective o" t!e investi%ative #odiescreated in t!e past li$e t!e PC6C, PC6PE, P6R0O, t!e eliciano Co&&ission, t!e ;elo Co&&ission, and t!e enarosaCo&&ission. !ere #ein% no c!an%es in t!e %overn&ent structure, t!e Court is not inclined to declare suc! executive po'er as non-existent =ust #ecause t!e direction o" t!e political 'inds !aKsG c!an%ed.) 3underscorin% supplied4

T= Cor co- o, +; 4+;, -eerme or -c+e 4=+ orm+o =e re-e 4o- be ee-6 6 =e-; o ere =e += e<eco o +4 o :bc +cco+b;. !is s'eepin% directive o" t!e ponencia to include allpast ad&inistrations in t!e pro#e tra&ples upon t!e prero%ative o" a co-e<ual #ranc! o" %overn&ent.

!e %roup or class, "ro& '!ic! to elicit t!e needed in"or&ation, rests on su#stantial distinction t!at sets t!e class apart.

(ro+imity and magnitude of incidents

airl( recent events li$e t!e exi%encies o" transition and t!e reported lar%e-scale corruption explain t!e deter&ined need to "ocus onno ot!er period #ut t!e tenure o" t!e previous ad&inistration.

!e proxi&it( and &a%nitude o" particular conte&porar( events li$e t!e Oa$'ood &utin( and ;a%uindanao &assacre si&ilarl( =usti"ied t!e de"ined scope o" t!e eliciano Co&&ission and t!e enarosa Co&&ission, respectivel(. 6s applied to t!e t'oco&&issions '!ose o#=ective t!e ponencia itsel" reco%ni5es, t!e sa&e test o" reasona#leness re=ects t!e a#surd proposition to'iden t!eir respective scopes to include all incidents o" re#ellionF&utin( and election-related violence since t!e irst Repu#lic.Certainl(, it is "ar re&oved not =ust "ro& t!e present ti&e #ut also "ro& lo%ic and experience.

!is explained need "or speci"ic in"or&ation re&oves t!e ar#itrariness "ro& reco%ni5in% t!e previous ad&inistration as a distinctclass o" its o'n.

-ithout a complete and definitive report

!e ponencia #rus!es aside t!e pro""ered reasons "or li&itin% t!e investi%ation to t!e previous ad&inistration since /earlierad&inistrations !ave also #een #le&is!ed #( si&ilar 'idespread reports o" i&propriet(./)1

!e ponencia e&plo(s t!e pre&ise t!at previous ad&inistrations !ave all #een #le&is!ed #( reports o" i&proprieties si&ilar )) tot!ose o" t!e previous ad&inistration. !et!er reports o" suc! nature exist is not #orne #( t!e pleadin%s su#&itted #( petitioners '!oalle%e une<ual protection. it!out an( "actual #asis, t!e state&ent is inconclusive and, at #est, ar%ua#le.

6ssu&in% arguendo t!at co&para#le reports o" lar%e-scale %ra"t and corruption existed durin% ad&inistrations previous to t!e last,petitioners do not alle%e t!at in"or&ation re%ardin% t!ese reported activities is not (et availa#le in t!e Executive Depart&ent. On t!econtrar(, respondents disclose t!at t!e Presidential Co&&ission on 0ood 0overn&ent and t!e Sa%uisa% Co&&ission !ave alread(














8/13/2019 G.R. No. 192935 December 7, 2010


pro#ed into certain ano&alous transactions t!at occurred durin% t!e ;arcos and Ra&os ad&inistrations, respectivel(. Durin% pastad&inistrations, parallel "unctions !ad #een disc!ar%ed #( t!e Inte%rit( 2oard, Presidential Co&plaints and 6ction Co&&ission3PC6C4, Presidential Co&&ittee on 6d&inistrative Per"or&ance E""icienc( 3PC6PE4, and Presidential 6nti-0ra"t Co&&ittee3P60CO;, later replaced #( t!e Presidential Co&&ittee on 6d&inisterin% Per"or&ance E""icienc(4, t!at 'ere created #( "or&erPresidents uirino, ;a%sa(sa(, 0arcia and ;acapa%al, respectivel(.)* Not to &ention t!e plunder co&&itted durin% t!e Estradaad&inistration, t!e "acts o" '!ic! alread( =udiciall( ascertained, at t!at are contained in pu#lic records.

!e Executive Depart&entBs deter&ination o" t!e "utilit( or redundanc( o" investi%atin% ot!er ad&inistrations s!ould #e accorded

respect. Respondents !avin% &ani"ested t!at pertinent and credi#le data are alread( in t!eir !ands or in t!e arc!ives, petitionersBidea o" an all-enco&passin% de novo in<uir( #eco&es tenuous as it %oes #e(ond '!at t!e Executive Depart&ent needs.

!e exclusion o" ot!er past ad&inistrations "ro& t!e scope o" investi%ation #( t!e rut! Co&&ission is =usti"ied #( t!e su#stantialdistinction t!at co&plete and de"initive reports coverin% t!eir respective periods !ave alread( #een rendered. !e sa&e is not true'it! t!e i&&ediate past ad&inistration. !ere is t!us no undue "avor or un'arranted partialit(. o include ever(#od( all over a%ainis to insist on a useless act.

'he distinction is not discriminatory

I "ind it contradictor( "or t!e ponencia to state, on t!e one !and, t!at t!e rut! Co&&ission 'ould #e la#eled as a /ve!icle"or vindictiveness and selective retri#ution/)+ and declare, on t!e ot!er, t!at /its po'er to investi%ate isli&ited to o#tainin% "acts x x xand its "indin%s /'ould at #est #e reco&&endator( in natureK,G KaGnd x x x Kt!e concerned a%enciesG !ave a 'ide de%ree o" latitude todecide '!et!er or not to re=ect t!e reco&&endation./)

6"ter precisel( explainin% t!at /"act-"indin% is not ad=udication,/)8 t!e ponencia relates it to retri#ution '!ic! it depicts, in t!e contexto" trut! co&&issions, as a /retri#utor( #od( set up to tr( and punis! t!ose responsi#le "or t!e cri&es./)9 !e ponencia =u&ps intoconclusion #ut lands no'!ere "or it !as no %round on '!ic! to stand.

urt!er, t!e Court s!ould not concern itsel" 'it! t!e ne#ulous concept o" /partisan !ostilit(,/ a relativel( redundant ter& t!at eludesexact de"inition in a political 'orld o" turncoatis&. :ad t!e assailed issuance provided exe&ption to "or&er &e&#ers o" t!e previousad&inistration '!o !ave =oined t!e prevailin% political part(, I 'ould not !esitate to declare EO No. 1 void.

ar "ro& #ein% discri&inator(, E.O No. 1 per&its t!e pro#in% o" current ad&inistration o""icials '!o &a( !ave !ad a !and in t!ereported %ra"t and corruption co&&itted durin% t!e previous ad&inistration, re%ardless o" part( a""iliation. !e classi"ication nota#l(rests not on personalities #ut on period, as s!o'n #( t!e repeated use o" t!e p!rase /durin% t!e previous ad&inistration./)@

!e ponencia treats adventures in /partisan !ostilit(/ as a "or& o" undue discri&ination. it!out de"inin% '!at it is,t!e ponencia %ives li"e to a political creature and trans"or&s it into a le%al ani&al. 2( %ivin% le%al si%ni"icance to a &ere sa(-so o"

/partisan !ostilit(,/ it #eco&es uni&a%ina#le !o' t!e Court 'ill re"use to appl( t!is novel doctrine in t!e countless concerns o" t!ein!erentl( political #ranc!es o" %overn&ent under an invocation o" e<ual protection. 6nd to t!in$, t!e present &atter onl( involvest!e %at!erin% o" in"or&ation.

o $no'in%l( classi"( per se is not s(non(&ous to intentional discri&ination, '!ic! #rin%s &e to t!e next point t!at t!e classi"icationis %er&ane to t!e purpose o" t!e la'.

T=e c+c+o 6erm+eo =e :r:oe o =e +4

I entertain no dou#t t!at respondents consciousl( and deli#eratel( decided to "ocus on t!e corrupt activities reportedl( co&&itteddurin% t!e previous ad&inistration. or respondents to ad&it t!at t!e selection 'as inadvertent is 'orse. !e ponencia, !o'ever, is<uic$ to ascri#e intentional discri&ination "ro& t!e &ere "act t!at t!e classi"ication 'as intentional.

0ood "ait! is presu&ed. I "ind it inco&pre!ensi#le !o' t!e ponencia overturns t!at presu&ption. Citin% an arra( o" "orei%n

=urisprudence, t!e ponencia, in "act, reco%ni5es t!at &ere under-inclusiveness or inco&pleteness is not "atal to t!e validit( o" a la'under t!e e<ual protection clause. !us t!e ponencia ponti"icates>

!e Court is not una'are t!at /&ere underinclusiveness is not "atal to t!e validit( o" a la' under t!e e<ual protection clause.//Le%islation is not unconstitutional &erel( #ecause it is not all-e&#racin% and does not include all t!e evils 'it!in its reac!./ It !as#een 'ritten t!at a re%ulation c!allen%ed under t!e e<ual protection clause is not devoid o" a rational predicate si&pl( #ecause it!appens to #e inco&plete. In several instances, t!e underinclusiveness 'as not considered valid reason to stri$e do'n a la' orre%ulation '!ere t!e purpose can #e attained in "uture le%islations or re%ulations. !ese cases re"er to t!e /step #( step/ process./it! re%ard to e<ual protection clai&s, a le%islature does not run t!e ris$ o" losin% t!e entire re&edial sc!e&e si&pl( #ecause it"ails, =ro6= +-erece or o=er4e, to cover ever( evil t!at &i%!t conceiva#l( !ave #een attac$ed./
















8/13/2019 G.R. No. 192935 December 7, 2010


In Executive Order No. 1, !o'ever, t!ere is no clear indicia o" inadvertence. !at t!e previous ad&inistration 'as pic$ed out 'asdeli#erate and intentional as can #e %at!ered "ro& t!e "act t!at it 'as stressed t!ree ti&es in t!e assailed executive order. /!ee<ual protection clause is voided #( purpose"ul and intentional discri&ination./)3e&p!asis and underscorin% supplied4

6ccordin% to t!e ponencia itsel", t!e E.O.Bs "ailure to include all evils 'it!in its reac!, even #( desi%n, is not vulnera#le to an e<ualprotection c!allen%e. :o' t!e ponencia arrives at a contrar( conclusion pu55les.

it!in our o'n =urisprudential s!ores, t!e Court expounded in uinto v. Co&elec*

on t!ose classi"ications '!ic!,al#eit not all-inclusive, re&ain %er&ane to t!e purpose o" t!e la'.

Sad to state, t!is conclusion convenientl( i%nores t!e lon%-standin% rule t!at to re&ed( an in=ustice, t!e Le%islature need notaddress ever( &ani"estation o" t!e evil at onceA it &a( proceed /one step at a ti&e./ In addressin% a societal concern, it &ustinvaria#l( dra' lines and &a$e c!oices, t!ere#( creatin% so&e ine<uit( as to t!ose included or excluded. Nevert!eless, as lon% as/t!e #ounds o" reasona#le c!oice/ are not exceeded, t!e courts &ust de"er to t!e le%islative =ud%&ent. e &a( not stri$e do'n ala' &erel( #ecause t!e le%islative ai& 'ould !ave #een &ore "ull( ac!ieved #( expandin% t!e class. Stated di""erentl(, t!e "act t!ata le%islative classi"ication, #( itsel", is underinclusive 'ill not render it unconstitutionall( ar#itrar( or invidious. !ere is noconstitutional re<uire&ent t!at re%ulation &ust reac! eac! and ever( class to '!ic! it &i%!t #e appliedA t!at t!e Le%islature &ust #e!eld ri%idl( to t!e c!oice o" re%ulatin% all or none.

!us, an( person '!o poses an e<ual protection c!allen%e &ust convincin%l( s!o' t!at t!e la' creates a classi"ication t!at is/palpa#l( ar#itrar( or capricious./ :e &ust re"ute all possi#le rational #ases "or t!e di""erin% treat&ent, '!et!er or not t!e Le%islaturecited t!ose #ases as reasons "or t!e enact&ent, suc! t!at t!e constitutionalit( o" t!e la' &ust #e sustained even i " t!ereasona#leness o" t!e classi"ication is /"airl( de#ata#le./ In t!e case at #ar, t!e petitioners "ailed and in "act did not even atte&pt

to disc!ar%e t!is !eav( #urden. Our assailed Decision 'as li$e'ise silent as a sp!inx on t!is point even '!ile 'e su#&itted t!e"ollo'in% t!esis>

. . . KIGt is not su""icient %rounds "or invalidation t!at 'e &a( "ind t!at t!e statuteBs distinction is un"air, underinclusive, un'ise, or nott!e #est solution "ro& a pu#lic-polic( standpointA rat!er, 'e &ust "ind t!at t!ere is no reasona#l( rational reason "or t!e di""erin%treat&ent. 3underscorin% supplied4

!e /one step at a ti&e/ approac! is t!us not unconstitutional. E.O. No. 1 is not t!e "irst, #ut t!e latest, step in a series o" initiativesunderta$en #( Presidents, as earlier illustrated. Neit!er 'ill it #e t!e last step. E.O. No. 1 contains a special provision*1 concernin%t!e expansion o" &andate. !ere #ein% no constitutional violation in a step-#(-step approac!, t!e present and "uture ad&inistrations&a( release supple&entar( or co&para#le issuances.

!e 'isdo& #e!ind t!e issuance o" t!e E.O. No. 1 is /outside t!e ru#ric o" =udicial scrutin(./*) 6nalo%ous touintoBs instructions, t!isCourt cannot and s!ould not arro%ate unto itsel" t!e po'er to ascertain and i&pose on t!e President t!e #est or co&plete 'a( o"o#tainin% in"or&ation to eradicate corruption. Polic( c!oices on t!e practicalit( or desira#ilit( o" data-%at!erin% t!at is responsive to

t!e needs o" t!e Executive Depart&ent in disc!ar%in% t!e dut( to "ait!"ull( execute t!e la's are #est le"t to t!e sound discretion o"t!e President.

;ost enli%!tenin% as to !o' t!e classi"ication is %er&ane to t!e purpose o" t!e la' is $no'in% "irst '!at is t!e purpose o" t!e la'.

6ccordin% to t!e ponencia, t!e o#=ective o" E.O. No. 1 is t!e /sta&pin% out Ko"G acts o" %ra"t and corruption./**

I di""er.

!e purpose o" E.O. No. 1 is t!e %at!erin% o" needed in"or&ation to aid t!e President in t!e i&ple&entation o" pu#lic accounta#ilit(la's. 2rie"l( stated, E.O. No. 1 ai&s to provide data "or t!e President.

!e ponencia, in "act, !as earlier explained> /It s!ould #e stressed t!at t!e purpose o" allo'in% ad hoc investi%atin% #odies to existis to allo' an in<uir( into &atters '!ic! t!e President is entitled to $no' so t!at !e can #e properl( advised and %uided in t!e

per"or&ance o" !is duties relative to t!e execution and en"orce&ent o" t!e la's o" t!e land./*+

!e lon%-ter& %oal o" t!e present ad&inistration &ust not #e con"used 'it! '!at E.O. No. 1 intends to ac!ieve 'it!in its s!ort li"e.!e openin% clauses and provisions o" E.O No. 1 are replete 'it! p!rases li$e /an ur%ent

call "or t!e deter&ination o" t!e trut!,/ /dedicated solel( to investi%atin% and "indin% out t!e trut!,/ and /pri&aril( see$ and "ind t!etrut!./

!e purpose of &.!. 9o. < is to produce a report '!ic!, inso"ar as t!e rut! Co&&ission is concerned, is t!e end in itsel".!e purpose of the report is anot!er &atter '!ic! is alread( outside t!e control o" E.O. No. 1.















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Once t!e report containin% t!e needed in"or&ation is co&pleted, t!e rut! Co&&ission is dissolved functus officio. 6t t!at point, t!eendeavor o" data-%at!erin% is acco&plis!ed, and E.O No. 1 !as served its purpose. It cannot #e said, !o'ever, t!at it alread(eradicated %ra"t and corruption. !e report 'ould still #e passed upon #( %overn&ent a%encies. Inso"ar as t!e ExecutiveDepart&ent is concerned, t!e report assi&ilates into a #roader data#ase t!at advises and %uides t!e President in la' en"orce&ent.

o state t!at t!e purpose o" E.O. No. 1 is to sta&p out acts o" %ra"t and corruption leads to t!e "allacious and arti"icial conclusiont!at respondents are sta&pin% out corrupt acts o" t!e previous ad&inistration onl(, as i" E.O. No. 1 represents t!e entire anti-corruption e""orts o" t!e Executive Depart&ent.

o state t!at t!e purpose o" E.O. No. 1 is to eradicate %ra"t and corruption #e%s t!e <uestion. !at is t!ere to eradicate in t!e "irstplace, i" clai&s o" %ra"t and corruption are (et to #e veri"ied #( t!e rut! Co&&ission Precisel(, #( issuin% E.O. No. 1, respondentssa' t!e need to veri"( ra' data #e"ore initiatin% t!e la' en"orce&ent &ec!anis&, i" 'arranted.

T=e c+c+o o me-o e<6 co-o o;

!e rut! Co&&ission is an ad hoc #od( "or&ed under t!e O""ice o" t!e President. !e nature o" an ad hoc #od( is t!at it is li&itedin scope. %d hoc &eans "or t!e particular end or case at !and 'it!out consideration o" 'ider application.* 6n ad hoc #od( isin!erentl( te&porar(. E.O. No. 1 provides t!at t!e rut! Co&&ission /s!all acco&plis! its &ission on or #e"ore Dece&#er *1,)1)./*8

!at t!e classi"ication s!ould not #e li&ited to existin% conditions onl(, as applied in t!e present case, does not &ean t!e inclusion

o" "uture ad&inistrations. La's t!at are li&ited in duration 3e.g., %eneral appropriations act4 do not circu&vent t!e %uarantee o"e<ual protection #( not e&#racin% all t!at &a(, in t!e (ears to co&e, #e in si&ilar conditions even #e(ond t!e e""ectivit( o" t!e la'.

!e re<uire&ent not to li&it t!e classi"ication to existin% conditions %oes into t!e operational details o" t!e la'. !e la' cannot, in"ine print, enu&erate extant ite&s t!at exclusivel( co&pose t!e classi"ication, t!ere#( excludin% soon-to-exist ones t!at &a( also "allunder t!e classi"ication.

In t!e present case, t!e circu&stance o" availa#le reports o" lar%e-scale ano&alies t!at "all under t!e classi"ication 3 i.e., co&&itteddurin% t!e previous ad&inistration4 &a$es one an /existin% condition./ !ose not (et reported or uneart!ed #ut li$e'ise "all undert!e sa&e class &ust not #e excluded "ro& t!e application o" t!e la'. !ere is no suc! exclusionar( clause in E.O. No. 1.

!e ratiocination on t!is t!ird re<uisite so as to include previous ad&inistrations alread( %oes into t!e /classi"ications,/ not t!e/conditions./ !e ponencia re'rites t!e rule leadin% to t!e a#surd re<uire&ent t!at t!e classi"ication s!ould not #e li&ited to t!eexistin% /classi"ication/ onl(.

T=e c+c+o +::e e+;o + member o =e +me c+

Petitioners concede, #( t!eir "ailure to alle%e ot!er'ise, t!at t!e classi"ication applies e<uall( to all &e&#ers withint!e sa&e class3i.e., all reports o" lar%e-scale %ra"t and corruption durin% t!e previous ad&inistration4. 2( t!is i&plied ad&ission, t!is "ourt!re<uire&ent &eets no o#=ection.

PetitionersB onl( insistent contention, as sustained #( t!e ponencia, is t!at all prior ad&inistrations #elon% to t!e sa&e class, citin%t!at e<ual protection si&pl( re<uires t!at all persons or t!in%s si&ilarl( situated s!ould #e treated ali$e, #ot! as to ri%!ts con"erredand responsi#ilities i&posed.*9

Petitioners do not espouse t!e vie' t!at no one s!ould #e investi%ated. !at t!e( advocate is t!at all ad&inistrations s!ould #einvesti%ated or, &ore accuratel(, all reports o" lar%e-scale %ra"t and corruption durin% t!e tenure o" past ad&inistrations s!ould #esu#=ected to investi%ation.

Discri&ination presupposes pre=udice. I "ind none.

4irst , no one co&plains o" in=ur( or pre=udice. Petitioners do not see$ t!e li"tin% o" their own o#li%ations or t!e %rantin% o" theirown ri%!ts t!at E.O. No. 1 i&poses or disallo's. 6s earlier expounded, petitioner-le%islators cannot plausi#l( invo$e t!e e<ualprotection clai&s o" ot!er persons, '!ile petitioner 2irao%o did not invo$e it at all .

econd , petitioners do not alle%e t!at previous ad&inistrations, ot!er t!an t!e i&&ediate past ad&inistration, !ave #een deniedt!e ri%!t to appear #e"ore or #e exa&ined #( t!e rut! Co&&ission. Neit!er do petitioners identi"( t!e speci"ic "act-"indin%o#li%ations exclusivel( i&posed upon t!e i&&ediate past ad&inistration #( t!e rut! Co&&ission '!ose pri&ar( dut( is &erel( to/investi%ate reports o" %ra"t and corruption and to reco&&end t!e appropriate action./*@










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hird , assu&in% t!at t!ere alread( exists an i&position o" o#li%ation "ro& t!e &ere reco&&endation "or prosecution 3as one o" t!epossi#le appropriate &easures4 #( t!e rut! Co&&ission, t!e act o" not reco&&endin% t!e prosecution o" all t!ose '!o could #epro#a#l( %uilt( o" %ra"t and corruption is not violative o" t!e e<ual protection clause. Even in t!e succeedin% sta%e o" preli&inar(investi%ation, '!ic! is alread( /out o" t!e rut! Co&&issionBs sp!ere o" "unctions,/* =urisprudence instructs t!at t!e ri%!t to e<ualprotection o" t!e la's /&a( not #e perversel( used to =usti"( desistance #( t!e aut!orities "ro& prosecution o" a cri&inal case, =ust#ecause not all o" t!ose '!o are pro#a#l( %uilt( t!ereo" 'ere c!ar%ed./+

7eril(, '!ere t!ere is clai& o" #reac! o" t!e due process and e<ual protection clauses, considerin% t!at t!e( arenot "ixed rules #ut

rat!er #road standards, t!ere is a need "or proo" o" suc! persuasive c!aracter as 'ould lead to suc! a conclusion. 6#sent suc! as!o'in%, t!e presu&ption o" validit( &ust prevail.+1

inall(, even assu&in% ar%uendo t!at all prior ad&inistrations s!ould #e included 'it!in t!e scope o" investi%ation o" t!e rut!Co&&ission, E.O. No 1 is saved #( a separa#ilit( clause,+) considerin% t!at t!e re&ainin% portions can stand independentl( o" t!eassailed portions and constitute a co&plete, intelli%i#le and valid la' '!ic! carries out t!e intent o" t!e la'.+* !ere is t!us no #asis"or den(in% t!e ot!er provisions o" t!eir continued "orce and en=oinin% t!e operation o" t!e rut! Co&&ission.

I, t!ere"ore, su#&it t!at t!ere exists a /reasona#le "oundation or rational #asis/++ "or de"inin% t!e su#=ect o" t!e special "act-"indin%investi%ation #( t!e rut! Co&&ission.

or t!e "ore%oin% reasons, I vote to DIS;ISS t!e petitions.

CONCITA CARIO #ORAL!S

6ssociate Justice

$oooe

1 Executive Order No. )) 3Jul( ), 1@94, 2oo$ I, C!apter , Sec. *9.

) Constitution, 6rt. 7II, Secs. 1 U 9 3)nd sentence4, respectivel(.

* Id., Sec. 9 31st sentence4.

+ Executive Order No. )) 3Jul( ), 1@94, 2oo$ III, itle III, C!apter 1, Sec. *1.

Presidential Decree No. 1+18 3June , 194, as a&ended #( Presidential Decree No. 199) 3Januar( 1, 1@)4.

8 Constitution, 6rt. III, Sec. 1.

9 Ponencia, p. +1.

@ /ide )agatsing v. Committee on Privati:ation, P9CC , *18 P!il. +1+ 314.

%na* 0indanao Party5(ist #roup v. he &+ecutive ecretary , 0.R. No. 188), 6u%ust ), )9, *1 SCR6 @*.

1 /ide e.%., outhern 1emisphere &ngagement 9etwor*, 6nc. v. %nti5errorism Council , 0.R. No. 19@), Octo#er ,)1, '!ere t!e Court "ound t!at Sen. ;a. 6na Consuelo ;adri%al !ad no le%al standin%.

11 Ponencia, pp. 1*-1+, citin% Philippine Constitution %ssociation v. &nri8ue: , 0.R. No. 11*1, 6u%ust 1, 1+, )*SCR6 8.

1) Pimentel, -r. v. !ffice of the &+ecutive ecretary , 0.R. No. 1@@@, Jul( 8, ), +8) SCR6 8)), 8*1-8*).

1* P!il. 89 3)4.

1+ /ide White (ight Corporation v. City of 0anila, 0.R. No. 1))@+8, Januar( ), ), 98 SCR6 +18, +*1-+*), '!ic!reads>











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6&erican =urisprudence is replete 'it! exa&ples '!ere parties-in-interest 'ere allo'ed +-6 o +-oc+eor oe =e -+me+ -e :roce or e+ :roeco c+m o o=er :ero or classes o" personsin=ured #( state action. In #riswold v. Connecticut, t!e nited States Supre&e Court !eld t!at p!(sicians !adstandin% to c!allen%e a reproductive !ealt! statute t!at 'ould penali5e t!e& as accessories as 'ell as to pleadt!e constitutional protections availa#le to t!eir patients. !e Court !eld t!at>

!e ri%!ts o" !us#and and 'i"e, pressed !ere, are li$el( to #e diluted or adversel( a""ected unless t!ose ri%!tsare considered in a suit involvin% t!ose '!o !ave t!is $ind o" con"idential relation to t!e& .

6n even &ore analo%ous exa&ple &a( #e "ound in Craig v. )oren, '!erein t!e nited States Supre&e Court!eld t!at a licensed #evera%e vendor !as standin% to raise t!e e<ual protection clai& o" a &ale custo&erc!allen%in% a statutor( sc!e&e pro!i#itin% t!e sale o" #eer to &ales under t!e a%e o" )1 and to "e&ales undert!e a%e o" 1@. !e nited States :i%! Court explained t!at t!e vendors !ad standin% /#( actin% as advocates o"t!e ri%!ts o" t!ird parties '!o see$ access to t!eir &ar$et or "unction./

6ssu&in% arguendo t!at petitioners do not !ave a relations!ip 'it! t!eir patrons "or t!e "or&er to assert t!eri%!ts o" t!e latter, t!e over#readt! doctrine co&es into pla(. x x x 3e&p!asis and underscorin% supplied4

1 Conse<uentl(, 6.;. No. -)-+-SC 3e""ective ;arc! 1, 14 directs> /No ne' issues &a( #e raised #( a part( in t!e;e&orandu&. Issues raised in previous pleadin%s #ut not included in t!e ;e&orandu& s!all #e dee&ed 'aived ora#andoned. 2ein% a su&&ation o" t!e parties previous pleadin%s, t!e ;e&oranda alone &a( #e considered #( t!e Courtin decidin% or resolvin% t!e petition./

18 Ponencia, p. 18.

19 It can #e ar%ued t!at t!e dan%er o" ot!er'ise resolvin% one issue not raised #( t!e proper part(, '!ic! issueis personal to !i&, is t!e e""ect o" "oreclosin% certain de"enses $no'n onl( to !i&. I" t!e issue concernin% t!e /in=ured non-part(/ is de"eated, it t!en #eco&es t!e /la' o" t!e case/ 3vide )anco de !ro5&PC6, 6nc. v. ansipe* , 0.R. No. 1@1)*,Jul( )), ), * SCR6 +8 on /la' o" t!e case/4. !e in=ured part( can no lon%er resurrect t!e issue in a later case,even i" !e can present ar%u&ents &ore illu&inatin% t!an t!at o" t!e current /unin=ured/ petitioner.

1@ Ponencia, p. *8.

1 uinto v. Commission on &lections, 0.R. No. 1@8@, e#ruar( )), )1.

) Ponencia, pp. )+-).

)1 Id. at *9.

)) /x x x reports o" %ra"t and corruption o" suc! scale and &a%nitude t!at s!oc$ and o""end t!e &oral and et!icalsensi#ilities o" t!e people x x xA/ vide Executive Order No. 1 3Jul( *, )14, Sec. 1.

)* RespondentsB ;e&orandu&, 6nnex 1, citin% Executive Order No. *1@ 3;a( ), 14 and Executive Order No. 13Dece&#er *, 1*4A vide Executive Order No. *8 3Jul( 1, 1@4, Executive Order No. *9@ 3e#ruar( 1@, 184 laterrepealed #( Executive Order No. +9 3Dece&#er ), 1814.

)+ Ponencia, p. *8.

) Id. at ).

)8

Id. at )9, vide id. at 9.

)9 Id. at @.

)@ Executive Order No. 1 3Jul( *, )14, Secs. 1-) U 9t! '!ereas clause.

) Ponencia, p. *.

* 0.R. No. 1@8@, e#ruar( )), )1.

































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*1 Executive Order No. 1 3Jul( *, )14, Sec. 19. pecial Provision Concerning 0andate. I" and '!en in t!e =ud%&ento" t!e President t!ere is a need to expand t!e &andate o" t!e Co&&ission as de"ined in Section 1 !ereo" to include t!einvesti%ation o" cases and instances o" %ra"t and corruption durin% t!e prior ad&inistrations, suc! &andate &a( #e soextended accordin%l( #( 'a( o" a supple&ental Executive Order.

*) uinto v. Commission on &lections, supra.

**

Ponencia, p. *9.

*+ Id. at )+.

* !ttp>FF'''.&erria&-'e#ster.co&Fdictionar(FadZ!oc Kvisited> Nove&#er 1, )1G.

*8 Executive Order No. 1 3Jul( *, )14, Sec. 1+.

*9 Ponencia, p. **.

*@ Id. at )8.

* Id. at ).

+ 'eyes v. Pearlban* ecurities, 6nc ., 0.R. No. 191+*, Jul( *, )@, 8 SCR6 1@, *.

+1 )ritish %merican obacco v. Camacho, 0.R. No. 18*@*, 6u%ust ), )@, 8) SCR6 11, 9.

+) Executive Order No. 1 3Jul( *, )14, Sec. 1@. eparability Clause. I" an( provision o" t!is Order is declaredunconstitutional, t!e sa&e s!all not a""ect t!e validit( and e""ectivit( o" t!e ot!er provisions !ereo".

+* /ide %ba*ada #uro Party (ist v. Purisima, 0.R. No. 18891, 6u%ust 1+, )@, 8) SCR6 )1, )@-)A&+ecutiveecretary v. outhwing 1eavy 6ndustries, 6nc., 0.R. No. 18+191, e#ruar( ), )8, +@) SCR6 89*.

++ 6&#ros v. Co&&ission on 6udit 3CO64, 0.R. No. 19, June *, ), +8) SCR6 9), 9.


DISS!NTING OINION

ir, 6 say that justice is truth in action.

2en=a&in Disraeli, in a speec! delivered #e"ore t!e 2ritis! :ouse o" Co&&ons, e#ruar( 11, 1@1

S!R!NO, J:

!e &a=orit( Decision de"eats t!e constitutional &andate on pu#lic accounta#ilit(A it e""ectivel( tolerates i&punit( "or %ra"t andcorruption. Its invocation o" t!e constitutional clause on e<ual protection o" t!e la's is an un'arranted &isuse o" t!e sa&e and is adisservice to t!ose classes o" people "or '!o& t!e constitutional %uarantee 'as created as a succor. !e &a=orit( Decision

acco&plis!ed t!is #( co&pletel( disre%ardin% /reasona#leness/ and all its =urisprudential !istor( as constitutional =usti"ication "orclassi"ication and #( replacin% t!e anal(tical test o" reasona#leness 'it! &ere recitations o" %eneral case doctrines to arrive at its"orced conclusion. 2( den(in% t!e ri%!t o" t!e President to classi"( persons in Executive Order No. 3EO4 1 even i" t!e classi"ication is"ounded on reason, t!e Decision !as i&per&issi#l( in"rin%ed on t!e constitutional po'ers o" t!e President. It 'a"ts t!e s&ell o" !opeonto t!e air to'ards t!ose '!o see$ t!e a""ir&ance o" EO 1 #( sa(in%>

... KG!is is not a deat! $nell "or a trut! co&&ission as no#l( envisioned #( t!e present ad&inistration. Per!aps a revision o" t!eexecutive issuance so as to include t!e earlier past ad&inistrations 'ould allo' it to pass t!e test o" reasona#leness and not #e ana""ront to t!e Constitution...1






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#ut t!e scent o" !ope, as 'ill #e de&onstrated, is t!at '!ic! e&anates "ro& a red !errin%. Since erdinand ;arcosBs presidenc(, noCourt !as sti"led t!e po'ers o" t!e P!ilippine presidenc( as !as t!is Court t!rou%! t!e &a=orit( Decision.

!e Concurrin% Opinion o" Justice 6rturo 2rion reveals one undercurrent #eneat! t!e &a=orit(Bs lo%icall( inde"ensi#le conclusiont!at "lo's t!usl(> 314 t!e ilipino people cannot #e trusted to reco%ni5e trut! "ro& untrut!A 3)4 #ecause t!e people cannot &a$e t!edistinction, t!ere exists a lar%e possi#ilit( t!at t!e people 'ould accept as trut! t!e P!ilippine rut! Co&&ission 3PC4 version o"t!e stor( on reports o" %ra"t and corruption under t!e ad&inistration o" President 0loria ;acapa%al-6rro(o even i" it turns out to #euntrut!A 3*4 t!is potential pu#lic #elie" in t!e untrut! also ena#les t!e credulous pu#licBs inordinate pressure on t!e O&#uds&an and

t!e courts to concur in t!e untrut!A 3+4 #ecause o" t!e possi#ilit( o" t!is inordinate pressure #ein% #rou%!t to #ear, t!e pro#a#ilit( t!att!e O&#uds&an and t!e courts 'ould %ive in to suc! pressure existsA 34 t!us t!e "or&ula e&er%es t!e pu#lic cla&or supportiveo" t!e untrut! plus t!e O&#uds&an and t!e courts possi#l( %ivin% 'a( to t!is cla&or e<uals violation o" t!e due process ri%!ts o""or&er President 6rro(o and !er o""icialsA in turn, t!is su& e<uals stri$in% do'n t!e P!ilippine rut! Co&&ission "or #ein%unconstitutional.

!e separate opinions o" C!ie" Justice Renato Corona and Justices eresita de Castro, Lucas 2ersa&in, and Jose Pere5 !old anextre&e vie' on EO 1, opposin% 'ell-esta#lis!ed =urisprudence '!ic! cate%oricall( pronounce t!at t!e investi%ator( po'ers o" t!eO&#uds&an &a( #e concurrentl( exercised 'it! ot!er le%all( aut!ori5ed #odies. C!ie" Justice Corona and Justices de Castro,Diosdado Peralta, and 2ersa&in even %o "urt!er in sa(in% t!at it 'ould ta$e con%ressional action, #( &eans o" le%islation, to createa trut! co&&ission 'it! t!e sa&e &andate as t!at in EO 1A and even i" Con%ress itsel" 'ere to create suc! co&&ission, it 'ould still#e struc$ do'n "or violatin% t!e e<ual protection ri%!t o" "or&er President 6rro(o.

Justice 6ntonio Carpio opines t!at t!e e""ect o" t!e &a=orit( Decision is t!e a#solute prevention o" t!e investi%ation o" t!e 6rro(oad&inistration.) I a%ree 'it! !is assess&ent, especiall( considerin% t!e "urt!er vie's on t!e &atter expressed separatel( #( C!ie"

Justice Corona and Justices de Castro, 2rion, Peralta, 2ersa&in, and Pere5. In &( vie', t!e Decision and t!e separate concurrin%opinions &ani"est t!e /#ac$las! e""ect/ '!erein &ove&ents to ac!ieve social =ustice and a &ore e<uita#le distri#ution o" po'ers are&et 'it! opposition "ro& t!e do&inant %roup. !en t!e people start de&andin% accounta#ilit(, in response to '!ic! trut!co&&issions and ot!er "act-"indin% #odies are esta#lis!ed, t!ose "ro& t!e previousl( rulin% elite, '!o retain so&e !old on po'er,las! #ac$ at t!e e""ort #( cr(in% /persecution,/ /violation o" due process/ and /violation o" t!e e<ual protection %uarantee./ So&e o"t!e petitioners, accordin% to Justice Conc!ita Carpio ;orales, are in essence actin% "or and in #e!al" o" "or&er President 6rro(o and!er o""icials, ot!er'ise t!e( 'ould not #e invo$in% t!e /e<ual protection clause,/ a de"ense t!at is in!erentl( personal to President

6rro(o and !er o""icials. !ese petitioners are 'ieldin% t!e #ac$las! '!ip t!rou%! t!e Petitions. In #endin% over #ac$'ards toacco&&odate t!e Petitions, especiall( on e<ual protection clai&s '!ic! Petitioners could not properl( raise, t!is Court is 'ittin%l( orun'ittin%l( co&pro&isin% i&portant constitutional principles and renderin% t!e pat! to a %enuinel( stron% de&ocratic P!ilippines&ore di""icult. it! all due respect, t!e Decision in e""ect conve(s t!e i&&oral lesson t!at '!at is all-i&portant is to capture andretain political po'er at all costs and &isuse t!e le%al in"rastructure, includin% t!e 2ill o" Ri%!ts and t!e po'er o" appoint&ent, tocreate a s!ield o" i&&unit( "ro& prosecution o" &isdeeds.

indin%s and Dispositive Conclusion o" t!e ;a=orit(

!e dispositive conclusion o" t!e &a=orit( Decision contradicts its o'n understandin% o" #ot! t!e Constitution and t!e le%ali&plication o" recent political events. It "inds t!at> 314 t!e ilipino people convinced in t!e sincerit( and a#ilit( o" 2eni%no Si&eon

6<uino III to carr( out t!e no#le o#=ective o" sta&pin% out %ra"t and corruption, /catapulted t!e %ood senator to t!e Presidenc(/*A 3)4to trans"or& !is ca&pai%n slo%an into realit(, /President 6<uino "ound a need "or a special #od( to investi%ate reported cases o"%ra"t and corruption alle%edl( co&&itted durin% t!e ad&inistration o" !is predecessor/+A 3*4 t!e P!ilippine rut! Co&&ission 3PC4is an ad !oc co&&ittee t!at "lo's "ro& t!e PresidentBs constitutional dut( to ensure t!at t!e la's are "ait!"ull( executed, and t!us itcan conduct investi%ations under t!e aut!orit( o" t!e President to deter&ine '!et!er t!e la's 'ere "ait!"ull( executed in t!e pastand to reco&&end &easures "or t!e "uture to ensure t!at t!e la's 'ill #e "ait!"ull( executedA 3+4 t!e PC is constitutional as to its&anner o" creation and t!e scope o" its po'ersA8 34 t!at it is si&ilar to valid investi%ative #odies li$e t!e PC6C, PC6PE, P6R0O,t!e eliciano Co&&ission, t!e ;elo Co&&ission and t!e eQarosa Co&&ission.9 Neer=ee, t!e &a=orit( Decision concludedt!at t!e PC s!ould #e struc$ do'n as unconstitutional "or violatin% t!e e<ual protection clause "or t!e reason t!at t!e PCBs clear&andate is to /investi%ate and "ind out t!e trut! concernin% t!e reported cases o" %ra"t and corruption durin% t!e previousad&inistration onl(./@

!ere is a dis=oint #et'een t!e pre&ises and t!e conclusion o" t!e Decision caused #( its discard o" t!e ele&entar( rules o" lo%icand le%al precedents. It su""ers "ro& internal contradiction, en%a%es in se&antic s&o$e-and-&irrors and #latantl( disre%ards '!at

&ust #e done in evaluatin% e<ual protection clai&s, i.e., a =ud%e &ust as$ '!et!er t!ere 'as indeed a classi"icationA t!e purpose o"t!e la' or executive actionA '!et!er t!at purpose ac!ieves a le%iti&ate state o#=ectiveA t!e reason "or t!e classi"icationA and t!erelations!ip #et'een t!e &eans and t!e end. it!in t!ose la(ers o" anal(sis, t!e =ud%e &ust co&pare t!e clai&ed reason "orclassi"ication 'it! cases o" li$e or unli$e reasonin%. :e $no's t!e real 'orld, !e loo$s at its li&itations, !e applies !is co&&onsense, and t!e =ud%e $no's in !is =udicial !eart '!et!er t!e clai&ed reason &a$es sense or not. 6nd #ecause !e is a practical&an, '!o #elieves as Justice Oliver endell :ol&es did t!at t!e li"e o" t!e la' is in experience, !e $no's "alse "ro& %enuine clai&so" unconstitutional discri&ination.

it! all due respect, it is #ad enou%! t!at t!e Decision upsets t!e lon% line o" precedents on e<ual protection and displa(s sel"-contradiction. 2ut t!e &ost unaccepta#le e""ect o" t!e &a=orit( Decision is t!at a court o" unelected people '!ic! reco%ni5es t!att!e President /need3s4 to create a special #od( to investi%ate reports o" %ra"t and corruption alle%edl( co&&itted durin% t!e previous





















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ad&inistration/ to /trans"or& !is ca&pai%n pro&ise/ /to sta&p out %ra"t and corruption/ proposes to supplant t!e 'ill o" t!e &oret!an 1 &illion voters '!o voted "or President 6<uino and t!e &ore t!an @ o" ilipinos '!o no' trust !i&, #( i&posin%unreasona#le restrictions on and i&possi#le, un$no'a#le standards "or presidential action. !e Decision t!ere#( prevents t!e"ul"ill&ent o" t!e political contract t!at exists #et'een t!e P!ilippine President and t!e ilipino people. In so doin%, t!e Court !asarro%ated unto itsel" a po'er never i&a%ined "or it since t!e da(s o" ;ar#ur( v. ;adison1 '!en t!e doctrine o" =udicial revie' 'as"irst laid do'n #( t!e .S. Supre&e Court. !e &a=orit( does not onl( violate t!e separation o" po'ers doctrine #( its %ratuitousintrusion into t!e po'ers o" t!e President '!ic! violation t!e Decision see$s to den(. Na(, t!e &a=orit( created a situation "ar'orse t!e usurpation #( t!e =udiciar( o" t!e soverei%n po'er o" t!e people to deter&ine t!e priorities o" 0overn&ent.

!e ;a=orit( DecisionBs Expansive 7ie's o" t!e Po'ers o" t!e Presidenc( and t!e ;andate o" t!e 6<uino 0overn&ent

!e &a=orit( Decision starts 'it! an expansive vie' o" t!e po'ers o" t!e P!ilippine presidenc( and '!at t!is presidenc( issupposed to acco&plis! "or t!e ilipino people>

!e %enesis o" t!e "ore%oin% cases can #e traced to t!e events prior to t!e !istoric ;a( )1 elections, '!en t!en Senator 2eni%noSi&eon 6<uino III declared !is staunc! conde&nation o" %ra"t and corruption 'it! !is slo%an, /Mun% 'alan% corrupt, 'alan%&a!irap./ !e ilipino people convinced in !is sincerit( and in !is a#ilit( to carr( out t!is no#le o#=ective catapulted t!e %ood senatorto t!e Presidenc(.11

:ere 'e !ave t!e &a=orit( a""ir&in% t!at t!ere exists a political contract #et'een t!e incu&#ent President and t!e ilipino people t!at !e &ust sta&p out %ra"t and corruption. It &ust #e re&e&#ered t!at t!e presidenc( does not exist "or its o'n sa$eA it is #ut t!einstru&ent o" t!e 'ill o" t!e people, and t!is relations!ip is e&#odied in a political contract #et'een t!e President and t!e people.!is political contract creates &an( o" t!e sa&e $inds o" le%al and constitutional i&peratives under t!e social contract t!eor( as

or%anic c!arters do. It also under%irds t!e &oral le%iti&ac( o" political ad&inistrations. !is political contract #et'een President 6<uino and t!e ilipino people is a potent "orce t!at &ust #e vie'ed 'it! t!e sa&e seriousness as t!e 1@9 Constitution, '!oseaut!orit( is onl( &aintained #( t!e continuin% assent t!ereto o" t!e sa&e ilipino people.

!en t!e Decision proceeds to a""ir& t!e po'er o" t!e President to conduct investi%ations as a necessar( o""s!oot o" !is expressconstitutional dut( to ensure t!at t!e la's are "ait!"ull( executed.1) It t!en proceeds to explain t!at "act-"indin% po'ers &ustnecessaril( carr( t!e po'er to create ad !oc co&&ittees to underta$e "act-"indin%. 6nd #ecause t!e PC is onl( an ad !occo&&ittee t!at is to #e "unded "ro& t!e approved #ud%et o" t!e O""ice o" t!e President, t!e Executive Order t!at created it is not ausurpation o" an( le%islative po'er.

!e Decision up!olds in extensive a""ir&ator( lan%ua%e '!at, since t!e creation o" t!e Repu#lic, !as #een understood a#out t!epo'ers o" t!e Presidenc( and t!e need "or t!e e""ective exercise o" t!e investi%ator( po'ers o" t!at o""ice to serve state o#=ectives.n"ortunatel(, it t!en #rea$s its o'n c!ain o" t!ou%!t and s!rin$s t!e vista "ro& its %rand vie' o" representative %overn&ent to avie' t!at is &(opic and lo%icall( in"ir&.

!e ;a=orit( DecisionBs urn-6round to nconstitutionall( Restrict t!e Po'ers o" t!e 6<uino Presidenc(, its npredicta#le Standard"or /Reasona#le Prioriti5ation,/ and t!e Resultin% I&position o" an I&possi#le Condition on 6<uinoBs Ca&pai%n Pro&ise, as ell asIts Internal Contradiction

:avin% stron%l( expounded on t!e need o" President 6<uino to "ul"ill !is political contract 'it! t!e ilipino people to address %ra"tand corruption, and !is constitutional dut( to ensure t!at t!e la's are "ait!"ull( executed, t!e Court suddenl( "inds itsel"i&per&issi#l( restrictin% t!is po'er '!en t!e o#=ect o" t!e exercise o" t!e Presidential po'ers o" investi%ation under EO 1 "ocusedon t!e reported &isdeeds o" t!e 6rro(o ad&inistration. ro& "ull support o" t!e incu&#ent President and !is constitutional po'ers,t!e &a=orit( Decision reverses its trac$ to unconstitutionall( restrict !is po'ers #( e""ectivel( den(in% !i& t!e ri%!t to c!oose t!epriorit( in t!is case t!e 6rro(o ad&inistration in !is %ra"t-#ustin% ca&pai%n.

!e reasonin% o" t!e Decision proceeds t!us> 3a4 all past ad&inistrations are a class and to exclude ot!er past ad&inistrations is onits "ace unla'"ul discri&inationA 3#4 t!e reasons %iven #( t!e Solicitor 0eneral "or t!e li&ited scope o" t!e intended investi%ation ad&inistrative over#urden i" ot!er past ad&inistrations are included, di""icult( in uneart!in% evidence on old ad&inistrations,duplication o" investi%ations alread( &ade are eit!er specious, irrelevant to t!e le%iti&ate and no#le o#=ective o" t!e PC to sta&p

out corruption, or #eside t!e point and t!us do not =usti"( t!e discri&inationA 3c4 to #e constitutional, t!e PC &ust, /at least, !aveaut!orit( to investi%ate all past ad&inistrations/1* and /&ust not exclude t!e ot!er past ad&inistrations/A1+ 3d4 /KpGer!aps a revision o"t!e executive issuance so as to include t!e earlier past ad&inistrations 'ould allo' it to pass t!e test o" reasona#leness and not #ean a""ront to t!e Constitution/A1 and 3e4 /reasona#le prioriti5ation is per&itted,/ #ut /it s!ould not #e ar#itrar( lest it #e struc$ do'nas unconstitutional./18

!e Decision is tellin% t!e President to proceed 'it! !is pro%ra& o" anti-corruption on t!e condition t!at, '!en constitutin% a "act-"indin% co&&ission, !e &ust include /all past ad&inistrations/ 'it!out exception, save !e cannot #e expected to investi%ate deadpresidents19 or t!ose '!ose cri&es !ave prescri#ed. :e &a( prioriti5e, #ut !e &ust &a$e sure suc! prioriti5ation is not ar#itrar(.



























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In tal$in% a#out an accepta#le "or&ulation "or a "act-"indin% co&&ission, it is as i" t!e Decision is tal$in% past EO 1.T=e re-e=+ +re+-; m+-e = +cH-6 :ror+o !O 1, +- = :ror+o o +rbr+r;. !e %overn&ent !as alread(explained '!( investi%ation o" t!e 6rro(o ad&inistration is its priorit( 3a4 t!e audit o" an i&&ediate past ad&inistration is usuall('!ere audits #e%inA 3#4 t!e evidence o" %ra"t and corruption is &ore li$el( to still #e intactA 3c4 t!e &ost i&&ediate deleterious e""ectso" t!e reported %ra"t and corruption o" t!e i&&ediate past ad&inistration 'ill need to #e "aced #( t!e present ad&inistrationA 3d4 t!eresources re<uired "or investi%ation o" t!e i&&ediate past ad&inistration alone 'ill ta$e up all t!e resources o" t!e PCA and 3e4ot!er past ad&inistrations !ave alread( #een investi%ated and one past president !as alread( #een =ailed. 2ut t!is Court is sa(in%t!at all t!e a#ove are not indicators o" rational prioriti5ation. !en, '!at is !is Court see&s to !ave set an inordinatel( !i%!

standard "or reasona#leness t!at is i&possi#le to satis"(, pri&aril( #ecause it is un$no'a#le and unpredicta#le. !e onl( conclusionis t!at t!ere is no ot!er standard out t!ere accepta#le to t!e &a=orit(, and t!ere never 'ill #e.1@ Even t!e &a=orit( Decision %ives noclue, and per!aps t!e &a=orit( !as no clue on '!at t!ose reasona#le standards are. 6s Justice lorentino eliciano said in !isconcurrence in aEada v. uvera>1

x x x !e en"orce&ent o" prescriptions '!ic! are #ot! un$no'n to and un$no'a#le #( t!ose su#=ected to t!e statute, !as #eent!rou%!out !istor( a co&&on tool o" t(rannical %overn&ents. Suc! application and en"orce&ent constitutes at #otto& a ne%ation o"t!e "unda&ental principle o" le%alit( in t!e relations #et'een a %overn&ent and its people.

!is is t!e red !errin% "or t!e &a=orit( Decision to spea$ as i" t!ere 'ere a 'a( to /t'ea$/ EO 1 so t!at it #eco&es accepta#le tot!e &a=orit( '!en in realit( t!ere is no 'a( t!at can #e done 'it!out loss o" di%nit( to t!e incu&#ent presidenc(. !e t'ea$ed EO,accordin% to t!e Decision, &ust include all past ad&inistrations in its covera%e, and can identi"( its priorit(A #ut a readin% o" t!eDecision alread( indicates t!at t!e &o&ent t!e prioriti5ation !ints at "ocusin% on t!e 6rro(o ad&inistration, t!en t!e &a=orit( is read(to once a%ain stri$e it do'n. Suc! proposition is to re<uire t!e 6<uino ad&inistration to en%a%e in !(pocris( to "act-"ind on /t!eelep!ant in t!e roo&/ 'it!out tal$in% a#out t!at elep!ant in particular #ecause t!e &a=orit( "inds t!at to tal$ a#out t!at particularelep!ant 'it!out tal$in% a#out all ot!er elep!ants is to deprive t!at particular elep!ant o" its e<ual protection ri%!t. !is Court !as

i&posed an un#eara#le and undi%ni"ied (o$e on t!e presidenc(. It is to re<uire t!e 6<uino Presidenc( to pretend t!at addressin%t!e reported %ra"t and corruption o" t!e 6rro(o ad&inistration 'as never a &a=or ca&pai%n pro&ise o" t!is Presidenc( to t!e people.

It is incu&#ent upon an( ad&inistration to conduct an internal audit o" its or%ani5ation in t!is case, t!e executive depart&ent. !isis standard practice in t!e private sectorA it s!ould li$e'ise #e standard practice "or t!e pu#lic sector i" t!e &andate o" pu#licaccounta#ilit( is to #e "ul"illed. No President s!ould #e prevented "ro& creatin% ad&inistrative structures to exact accounta#ilit(A"ro& conductin% internal audits and creatin% controls "or executive operationsA and "ro& introducin% %overnance re"or&s. or t!eCourt to do so 'ould #e to counter pro%ress and to den( t!e executive depart&ent t!e use o" #est practices t!at are par "or t!ecourse in &odern de&ocracies.

!e Decision contradicts itsel" #( concludin% t!at t!e %ra"t and corruption "act-"indin% &andate o" t!e PC is con"ined o; to t!oseincidents in t!e 6rro(o ad&inistration. In t!e sa&e #reat!, it ac$no'led%es t!at t!e express lan%ua%e o" EO 1 indicates t!at t!ePresident can expand t!e "ocus o" t!e PC at an( ti&e #( includin% ot!er past &isdeeds o" ot!er ad&inistrations. In ot!er 'ords,t!e clear and un&ista$a#le lan%ua%e o" EO 1 precludes an( conclusion t!at t!e PCBs investi%ation o" %ra"t and corruption iscon"ined onl( to t!e ad&inistration o" President 6rro(o. EO 1 s!ould #e read as e&po'erin% t!e PC to conduct its "act-"indin% on

t!e 6rro(o ad&inistration, andt!at t!is "act-"indin% &a( expand to include ot!er past ad&inistrations on t!e instruction o" President 6<uino.

!e use o" t!e 'ord /onl(/ in t!e &a=orit( Decision) is un'arranted, as it indicates exclusivit( o" t!e PCBs "ocus on t!e 6rro(oad&inistration an exclusivit( t!at is inco&pati#le 'it! t!e une<uivocall( non-exclusive lan%ua%e o" Sec. 19 o" EO 1. )1 !e lit&ustest t!at s!ould !ave #een applied #( t!is Court is '!et!er or not EO 1 is unconstitutional "or prioriti5in% "act-"indin% on t!e reported%ra"t and corruption o" t!e 6rro(o ad&inistration 'it!out "oreclosin%, #ut not %uaranteein%, "uture investi%ation into ot!erad&inistrations.

U4+rr+e- Cre+o o "C+ o A oc+ A-mr+o" + =e ObEec o Coo+ Ree4 b; T= Cor

6t t!e outset, it &ust #e e&p!asi5ed t!at EO 1 did not, "or purposes o" application o" t!e la's on %ra"t and corruption, create t'oclasses t!at o" President 6rro(o and t!at o" ot!er past ad&inistrations. Rat!er, it prioriti5ed "act-"indin% on t!e ad&inistration o"President 6rro(o '!ile sa(in% t!at t!e President could later expand t!e covera%e o" EO 1 to #rin% ot!er past ad&inistrations undert!e sa&e scrutin(. Prioriti5ation per se is not classi"ication. Else, as all !u&an activities re<uire prioriti5ation, ever(one in a priorit(

list "or re%ulation or investi%ation can &a$e out a case t!at t!ere is pri&a "acie classi"ication, and t!at t!e prioriti5ation is notsupported #( a reasona#le o#=ective. 6ll acts o" %overn&ent 'ould !ave to co&e to a !alt and all pu#lic o""ices 'ould need to =usti"(ever( plan o" action as to reasona#leness o" p!ases and prioriti5ation. !e step-#(-step approac! o" le%islative and re%ulator(re&edies reco%ni5ed as valid in uinto v. C!0&(&C )) and in t!e case la')* cited #( t!e Decision in essence sa(s t!atprioriti5ation is not classi"ication, &uc! less invalid classi"ication.

!e &a=orit( loo$s at t!e issue o" e<ual protection #( lu&pin% into a sin%le class all past ad&inistrations,)+ i.e., t!ose o" "or&erPresidents 6%uinaldo, ue5on, Os&eQa, Laurel, Roxas, uirino, ;a%sa(sa(, 0arcia, ;acapa%al, ;arcos, 6<uino, Ra&os, Estradaand 6rro(o. Justice Carpio &a$es t!e case t!at recover( o" ill-%otten 'ealt! is i&prescripti#le. !en conceiva#l( under t!e"or&ulation o" t!e &a=orit(, all past ad&inistrations are re<uired to #e investi%ated. In "act, even 'it! t!e exceptions introduced #(t!e Decision, its conclusor( parts e&p!asi5e t!e need to include all past ad&inistrations in t!e covera%e o" EO 1. It t!enpronounces t!at an( di""erence in treat&ent #et'een &e&#ers o" t!is class is une<ual protection, suc! t!at to treat t!e 6rro(o



















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ad&inistration di""erentl( "ro& t!e ad&inistration o" President 6%uinaldo is unconstitutional. 6"ter all, sa(s t!e &a=orit( Decision,corruption 'as reported in ot!er past ad&inistrations as 'ell.

!e lu&pin% to%et!er o" all P!ilippine political ad&inistrations spannin% 111 (ears, "or purposes o" testin% valid le%islation,re%ulation, or even "act-"indin% is un'arranted. !ere is in!erent illo%ic in t!e pre&ise o" t!e Decision t!at ad&inistrations "ro& t!eti&e o" 6%uinaldo to 6rro(o #elon% to one class.)

6ssu&in% ar%uendo t!at all t!e political ad&inistrations can #e cate%ori5ed as one class, t!e test o" reasona#leness !as #een &oret!an &et #( EO 1, as extensivel( discussed #( Justices Carpio, Carpio ;orales, 6ntonio Eduardo Nac!ura, and Ro#erto 6#ad. Let&e =ust add to t!eir voices #( loo$in% at t!e constitutional pro#le& #e"ore t!is Court "ro& ot!er an%les.

T=e #+Eor; Deco I-rec; A-m =+ =e "Re+o+bee Te" + Bee S+e- =e S+me Bre+= =+ Rere =e bc o Le 4= + Ure+ /or- (e4

o <uote "ro& t!e &a=orit( DecisionBs discussion o" t!e clai& o" violation o" t!e e<ual protection clause>

A=o6= =e :r:oe o =e Tr= Commo + 4= =e e6+e :o4er o =e re-e ...

. . . . . . . . .

... It &ust not leave out or /underinclude/ t!ose t!at s!ould ot!er'ise "all into a certain classi"ication.

. . . . . . . . .

6s elucidated in /ictoriano v. &li:alde 'ope Wor*ers2 nion and reiterated in a lon% line o" cases,

!e %uarant( o" e<ual protection o" t!e la's is not a %uarant( o" e<ualit( in t!e application o" t!e la's upon all citi5ens o" t!e state.It is not, t!ere"ore, a re<uire&ent, in order to avoid t!e constitutional pro!i#ition a%ainst ine<ualit(, t!at ever( &an, 'o&an and c!ilds!ould #e a""ected ali$e #( statute. E<ualit( o" operation o" statutes does not &ean indiscri&inate operation on circu&stancessurroundin% t!e&. It %uarantees e<ualit(, not identit( o" ri%!ts. !e Constitution does not re<uire t!at t!in%s '!ic! are di""erent in"act #e treated in la' as t!ou%! t!e( 'ere t!e sa&e. !e e<ual protection clause does not "or#id discri&ination as to t!in%s t!at aredi""erent. It does not pro!i#it le%islation '!ic! is li&ited eit!er in t!e o#=ect to '!ic! it is directed or #( t!e territor( 'it!in '!ic! it isto operate.

!e e<ual protection o" t!e la's clause o" t!e Constitution allo's classi"ication. Classi"ication in la', as in ot!er depart&ents o"$no'led%e or practice, is t!e %roupin% o" t!in%s in speculation or practice #ecause t!e( a%ree 'it! one anot!er in certain particulars.

6 la' is not invalid #ecause o" si&ple ine<ualit(. !e ver( idea o" classi"ication is t!at o" ine<ualit(. 6ll t!at is re<uired o" a validclassi"ication is t!at it #e reasona#le, '!ic! &eans t!at classi"ication s!ould #e #ased on su#stantial distinctions '!ic! &a$e "orreal di""erences, t!at it &ust #e %er&ane to t!e purpose o" t!e la'A t!at it &ust appl( e<uall( to eac! &e&#er o" t!e class. !eCourt !as !eld t!at t!e standard is satis"ied i" t!e classi"ication is #ased on a reasona#le "oundation or rational #asis and is notpalpa#l( ar#itrar(.

6ppl(in% t!ese precepts to t!is case, Executive Order No. 1 s!ould #e struc$ do'n as violative o" t!e e<ual protection clause. !eclear &andate o" t!e envisioned trut! co&&ission is to investi%ate and "ind out t!e trut! /concernin% t!e reported cases o" %ra"t andcorruption durin% t!e previous administration/ onl(. !e intent to sin%le out t!e previous ad&inistration is plain, patent and&ani"est ...

!ou%! t!e OS0 enu&erates several di""erences #et'een t!e 6rro(o ad&inistration and ot!er past ad&inistrations, t!esedistinctions are not su#stantial enou%! to &erit t!e restriction o" t!e investi%ation to t!e /previous ad&inistration/ onl(.

... !e OS0 ventures to opine t!at /to include ot!er past ad&inistrations, at t!is point, &a( unnecessaril( over#urden t!e

co&&ission and lead it to lose its e""ectiveness./ !e reason %iven is specious. It is 'it!out dou#t irrelevant to a le%iti&ate andno#le o#=ective o" t!e PC to sta&p out or /end corruption and t!e evil it #reeds./

!e :rob+b; =+ =ere 4o- be -c; e+r=6 e-ece or =+ =e e+rer re:or o6 =e e+rer+-mr+o 4ere +re+-; re- o be-e =e :o. O#viousl(, deceased presidents and cases '!ic! !ave alread(prescri#ed can no lon%er #e t!e su#=ects o" in<uir( #( t!e PC. Neit!er is t!e PC expected to conduct si&ultaneous investi%ationso" previous ad&inistrations, %iven t!e #od(Bs li&ited ti&e and resources. /!e La' does not re<uire t!e i&possi#le/ 3Lex non co%nitad i&possi#ilia4.

0iven t!e "ore%oin% p!(sical and le%al i&possi#ilit(, t!e Court lo%icall( reco%ni5es t!e un"easi#ilit( o" investi%atin% al&ost acentur(Bs 'ort! o" %ra"t cases. :o'ever, t!e "act re&ains t!at Executive Order No. 1 su""ers "ro& ar#itrar( classi"ication. !e PC,



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to #e true to its &andate o" searc!in% "or t!e trut!, &ust not exclude t!e ot!er past ad&inistration. !e PC &ust, at least, !ave t!eaut!orit( to investi%ate all past ad&inistrations. !ile reasona#le prioriti5ation is per&itted, it s!ould not #e ar#itrar( lest it #e struc$do'n "or #ein% unconstitutional.

I co- be +r6e- =+ co-er6 =+ =e TC + +- =oc bo-;, co:e me-. T=e Cor, =o4eer, o =eco-ere- e4 =+ +=o6= oc rerce-, =e coo+ 6+r+ee o e+ :roeco -er =e +4 =o-o +; 4+; be crcmee-. !e Constitution is t!e "unda&ental and para&ount la' o" t!e nation to '!ic! all ot!er la's &ustcon"or& and in accordance 'it! '!ic! all private ri%!ts deter&ined and all pu#lic aut!orit( ad&inistered. La's t!at do not con"or&

to t!e Constitution s!ould #e stric$en do'n "or #ein% unconstitutional. !ile t!e t!rust o" t!e PC is speci"ic, t!at is, "or investi%ationo" acts o" %ra"t and corruption, Executive Order No. 1, to survive, &ust #e read to%et!er 'it! t!e provisions o" t!e Constitution. oexclude t!e earlier ad&inistrations in t!e %uise o" /su#stantial distinctions/ onl( an /adventure in partisan !ostilit(./

o reiterate, in order "or a classi"ication to &eet t!e re<uire&ents o" constitutionalit(, it &ust include or e&#race all persons '!onaturall( #elon% to t!e class. /Suc! a classi"ication &ust not #e #ased on existin% circu&stances onl(, or so constituted as topreclude additions to t!e nu&#er included 'it!in a class, #ut &ust #e o" suc! nature as to e&#race all t!ose '!o &a( t!erea"ter #ein si&ilar circu&stances and conditions. urt!er&ore, all '!o are in situations and circu&stances '!ic! are relative to t!ediscri&inator( le%islation and '!ic! are indistin%uis!a#le "ro& t!ose o" t!e &e&#ers o" t!e class &ust #e #rou%!t under t!ein"luence o" t!e la' and treated #( it in t!e sa&e 'a( as &e&#ers o" t!e class./

!e Court is not una'are t!at /&ere underinclusiveness is not "atal to t!e validit( o" a la' under t!e e<ual protection clause/ ... Inseveral instances, t!e -ercee 4+ o co-ere- + +- re+o o re -o4 + +4 or re6+o 4=ere =e:r:oe c+ be ++e- re e6+o or re6+o. T=ee c+e reer o =e "e: b; e:" :roce. //= re6+r-o e+ :roeco c+m, + e6+re -oe o r =e r o o6 =e ere reme-+ c=eme m:; bec+e

+,=ro6= +-erece or o=er4e, o coer eer; e =+ m6= coce+b; =+e bee ++ce-./

In Executive Order No. 1, !o'ever, t!ere is no inadvertence. !at t!e previous ad&inistration 'as pic$ed out 'as deli#erate andintentional as can #e %leaned "ro& t!e "act t!at it 'as underscored at least t!ree ti&es in t!e assailed executive order. It &ust #enoted t!at Executive Order No. 1 does not even &ention an( particular act, event or report to #e "ocused on unli$e t!e investi%ativeco&&issions created in t!e past. /!e e<ual protection clause is violated #( purpose"ul and intentional discri&ination./

... 6lt!ou%! Section 19 allo's t!e President t!e discretion to expand t!e scope o" t!e investi%ations o" t!e rut! Co&&ission so asto include t!e acts o" %ra"t and corruption, it does not %uarantee t!at t!e( 'ould #e covered in t!e "uture. Suc! expanded &andateo" t!e co&&ission 'ill still depend on t!e '!i& and caprice o" t!e President. I" !e 'ould decide not to include t!e&, t!e section'ould t!en #e &eanin%less. !is 'ill onl( "orti"( t!e "ears o" t!e petitioners t!at t!e Executive Order No. 1 'as /cra"ted to tailor-"itt!e prosecution o" o""icials and personalities o" t!e 6rro(o ad&inistration./)8 3E&p!asis and underscorin% supplied4

In an earlier portion, I discussed t!e "indin%s o" t!e &a=orit( Decision re%ardin% t!e &andate o" President 6<uino "ro& t!e electorateand t!e vast expanse o" !is po'ers to investi%ate and ensure t!e "ait!"ul execution o" t!e la's. !e &a=orit( concedes t!e

reasona#leness o" t!e purpose o" EO 1, #ut, as s!o'n in t!e a#ove excerpts, it contests t!e &anner #( '!ic! President 6<uinoproposes to ac!ieve !is purpose. !e ver( discussion a#ove, !o'ever, de&onstrates t!e sel"-contradiction and unrealit( o" t!e&a=orit( DecisionBs 'orldvie'.

irst, t!e Decision concedes t!at classi"ication per se is not "or#idden in t!e process o" le%islation or re%ulation. Indeed, casesidenti"ied #( t!e Decision, '!en exa&ined, pronounce t!at t!e le%islature and t!e re%ulators &ust necessaril( pic$ and c!oose int!e process o" t!eir 'or$.

Second, in le%islation or re%ulation, a step-#(-step process resultin% in a classi"ication o" t!ose t!at are i&&ediatel( included t!ereinversus t!ose t!at !ave (et to #e included in t!e "uture is constitutional.

!ird, t!e Decision also concedes t!at t!e under-inclusiveness o" re&edial &easures is not unconstitutional, especiall( '!en t!epurpose can #e attained t!rou%! inclusive "uture le%islation or re%ulation. I note o" course, t!at t!e Decision states in an earlier partt!at /under-inclusiveness/ &a$es "or invalid classi"ication. It is i&portant to note t!e o#servation o" Justice Carpio t!at t!e creationo" t!e Presidential Co&&ission on 0ood 0overn&ent 3PC004 !as consistentl( #een up!eld #( t!e Court despite constitutional

c!allen%es on e<ual protection %rounds. !e PC00Bs c!arter !as t!e sa&e /"uture inclusion/ clause as Section 19 o" EO 1A (et, t!e&a=orit( Decision i%nores =urisprudence on t!e PC00.

ourt!, t!e Decision, t!rou%! a <uoted case,)9 o#serves t!at valid under-inclusiveness can #e t!e result o" eit!er inadvertence ordeli#erateness.

Re%ardless o" t!e "ore%oin% "indin%s and discussions, '!ic! in e""ect support its validit(, EO 1 is struc$ do'n #( t!e Decision. !e&a=orit( creates an ar%u&ent "or t!e invalidit( o" EO 1 #( <uotin% onl( "ro& %eneral principles o" case la' and i%norin% speci"icapplications o" t!e constitutional tests "or valid classi"ication. Instead o" dra'in% "ro& real-'orld experiences o" classi"ication decidedin t!e past #( t!e Court, t!e Decision relies on %eneral doctrinal state&ents nor&all( "ound in cases, #ut divorces t!ese doctrinalstate&ents "ro& t!eir speci"ic contextual settin% and t!ere#( i&poses unrealistic standards "or presidential action.






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!e la' !as al'a(s #een t!at a class can #e validl( distin%uis!ed "ro& ot!ers i" t!ere is a reasona#le #asis "or t!e distinction. !ereasona#leness o" t!e classi"ication in EO 1 'as a&pl( de&onstrated #( t!e Solicitor 0eneral, #ut t!e &a=orit( si&pl( respondsdis&issivel( t!at t!e distinctions are super"icial, specious and irrelevant, 'it!out clearl( explainin% '!( t!e( are so. Contrar( to t!econclusion o" t!e &a=orit(, =urisprudence #ear out t!e su#stantial and reasona#le nature o" t!e distinction.

it! respect to t!e "irst reason "or t!e classi"ication clai&ed #( t!e Solicitor 0eneral t!at ot!er past ad&inistrations !ave alread(#een investi%ated and, !ence, t!ere is constitutional #asis not to include t!e& in t!e i&&ediate "ocus o" t!e investi%ation t!e caseo" (una v. armiento)@ supports t!e conclusion t!at t!e distinction is constitutional.

Co&&on'ealt! 6ct No. 3C64 9*, '!ic! 'as sustained #( (una v. armiento, created t'o sets o" situations one in '!ic! persons'ere delin<uent in t!eir tax pa(&ents "or !al" o" t!e (ear 1+1 and t!e entiret( o" t!e (ears 1+)-+ 3durin% t!e Japaneseoccupation4, and anot!er in '!ic! persons !ad paid t!eir taxes "or t!e said periods. Onl( t!e "irst set o" persons 'as #ene"ited #(t!e tax a&nest( provision o" C6 9*. !e la' 'as silent on t!e treat&ent o" t!e tax pa(&ents &ade #( co&pliant taxpa(ers durin%t!at period. 6 clai& o" une<ual protection 'as raised. !e Court said>

Does t!is provision cover taxes paid #e"ore i ts enact&ent, as t!e plainti"" &aintains and t!e court #elo' !eld, or does it re"er, as t!eCit( reasurer #elieves, onl( to taxes '!ic! 'ere still unpaid

!ere is no a&#i%uit( in t!e lan%ua%e o" t!e la'. It sa(s /taxes and penalties due and pa(a#le,/ t!e literal &eanin% o" '!ic! is taxeso'ed or o'in%. 3See e#sters Ne' International Dictionar(.4 Note t!at t!e provision spea$s o" penalties, and note t!at penaltiesaccrue onl( '!en taxes are not paid on ti&e. !e 'ord /re&it/ underlined #( t!e appellant does not !elp its t!eor(, "or to re&it is todesist or re"rain "ro& exactin%, in"lictin%, or en"orcin% so&et!in% as 'ell as to restore '!at !as alread( #een ta$en. 3e#sters Ne'International Dictionar(4

e do not see t!at literal interpretation o" Co&&on'ealt! 6ct No. 9* runs counter and does violence to its spirit and intention, or-o 4e = =+ c= er:re+o 4o- be "coo+; b+-" =+ " 4o- -; -crm+e +6+ +<:+;er4=o =+- :+- +or o -ee +<:+;er."!e re&ission o" taxes due and pa(a#le to t!e exclusion o" taxes alread(collected does not constitute un"air discri&ination. Eac! set o" taxes is a class #( itsel", and t!e la' 'ould #e open to attac$ as classle%islation onl( i" all taxpa(ers #elon%in% to one class 'ere not treated ali$e. !e( are not.)

In ot!er 'ords, 'it!in t!e class o" taxpa(ers o#li%ated to pa( taxes in t!e period "ro& t!e second !al" o" 1+1 to t!e end o" 1+ aret'o su#classes t!ose '!o did not pa( t!eir taxes and t!ose '!o did. 2( t!e sa&e $ind o" reasonin%, 'it!in t!e class o" politicalad&inistrations, i" past ad&inistrations !ave alread( #een t!e su#=ect o" a "act-"indin% co&&ission, '!ile one particularad&inistration !as not #een so, t!at alone is a %ood #asis "or &a$in% a distinction #et'een t!e& and an ad&inistration t!at !as not(et #een investi%ated. !ere is a constitutionall( valid #asis, t!ere"ore, to distin%uis! #et'een t!e ;arcos, Ra&os, and Estradaad&inistrations '!ic! !ave alread( #een t!e su#=ect o" "act-"indin% co&&issions and t!e 6rro(o ad&inistration.

it! respect to t!e second reason "or t!e classi"ication t!at it 'ould #e undul( oppressive and #urdenso&e to re<uire t!e PC to

investi%ate all ad&inistrations case la' !olds t!at ad&inistrative constraints are a valid #asis "or classi"ication.

In 2ritis! 6&erican o#acco v. Ca&ac!o,* t!e Court declared t!e le%islative classi"ication "ree5e on t!e "our-tiered s(ste& o"ci%arette taxes as a valid and reasona#le classi"ication arisin% "ro& practicalit( and expedienc(.*1!us, "ree5in% t!e tax classi"icationo" ci%arettes #ased on t!eir 18 or )* net retail prices 'as "ound to #e t!e &ost e""icient 'a( to respond to Con%ressB le%iti&ateconcern 'it! si&pli"(in% tax collections "ro& ci%arette products. In a si&ilar vein, t!e President #elieved t!at t!e &ost e""icient ande""ective 'a( o" =u&p-startin% !is ad&inistrationBs "i%!t a%ainst corruption 'as to "ocus on one "ree5a#le ti&e "ra&e t!e latest pastad&inistration. !e le%iti&ate and valid ad&inistrative concern is o#viousl( t!e li&ited resources and ti&e availa#le to t!e PC to&a$e a co&pre!ensive (et valua#le "act-"indin% report 'it! reco&&endations to address t!e pro#le& o" %ra"t and corruption in ati&el( and responsive &anner 'it!in a period o" t'o (ears. :ence, t!ere can #e no violation o" e<ual protection #ased on t!e "actt!at t!e PCBs investi%ation is li&ited to t!e investi%ation o" '!at can #e "easi#l( investi%ated, a classi"ication #ased on t!eExecutiveBs practical ad&inistrative constraints.

it! respect to t!e t!ird reason "or t!e classi"ication &ade #( EO 1, one t!at lu&ps to%et!er t!e various te&poral reasons, t!eSolicitor 0eneral descri#es it t!us>

... !e se%re%ation o" t!e precedin% ad&inistration as t!e o#=ect o" "act-"indin% is 'arranted #( t!e realit( t!at unli$e 'it!ad&inistration lon% %one, t!e current ad&inistration 'ill &ost li$el( #ear t!e i&&ediate conse<uence o" t!e policies o" t!e previousad&inistration.

... !e classi"ication o" t!e previous ad&inistration as a separate class "or investi%ation lies in t!e realit( t!at t!e evidence o"possi#le cri&inal activit(, t!e evidence t!at could lead to recover( o" pu#lic &onies ille%all( dissipated, t!e polic( lessons to #elearned to ensure t!at anti-corruption la's are "ait!"ull( executed, are &ore easil( esta#lis!ed in t!e re%i&e t!at i&&ediatel(precede t!e current ad&inistration.












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!e te&poral di&ension o" ever( le%al ar%u&ent is supre&el( i&portant, i&posed #( t!e inevita#le "act t!at t!is 'orld and itsin!a#itants are creatures o" space and ti&e. Ever( pu#lic o""icial, t!ere"ore, &ust acco&plis! !is duties 'it!in t!e constraints o"space and ti&e. o i%nore t!e li&itation o" ti&e #( assu&in% t!at a pu#lic o""icial !as all t!e ti&e in t!e 'orld to acco&plis! aninvesti%ative %oal, and to "orce t!e su#=ect o" t!e universe o" !is scrutin( to co&prise all past ad&inistrations, is t!e !ei%!t o" le%alunreasona#leness. In ot!er 'ords, accordin% to t!e &a=orit( Decision, 'it!in t!e li&ited ter& o" President 6<uino, and 'it!in t!e&ore severel( li&ited li"e span o" an ad !oc "act-"indin% co&&ittee, President 6<uino &ust launc! !is pursuit to eradicate %ra"t andcorruption #( "act-"indin% into all past ad&inistrations spannin% &ultitudes o" decades. rut! co&&issions, o" '!ic! t!e PCaccordin% to C!ie" Justice Corona is one, are all !i%!l( li&ited in investi%ations, state&ent ta$in%, and transcri#in% in"or&ation.*) In

order to #e s'i"t and independent, trut! co&&issions operate 'it!in strict ti&e constraints. !e( are also restricted in t!e su#=ect&atter t!e( can revie'.** !is is t!e real 'orld o" trut! co&&issions, not t!at i&a%ined #( t!e &a=orit(.

!e ;a=orit( Decision 0rievousl( O&itted t!e 6nal(tical Process Re<uired o" t!is Court in E<ual Protection Clai&s

6 =udicial anal(sis &ust not stop at recitin% le%al doctrines '!ic! are its &ere #e%innin% points, #ut, especiall( in e<ual protectionclai&s, it &ust &ove "or'ard to exa&ine t!e "acts and t!e context o" t!e controvers(. :ad t!e &a=orit( ta$en pains to exa&ine itso'n cited cases, it 'ould !ave discovered t!at t!e cases, "ar "ro& conde&nin% EO 1, 'ould actuall( support t!e constitutionalit( o"t!e latter.

!e &a=orit( Decision and t!e separate opinion o" C!ie" Justice Corona rel( %reatl( on /ictoriano v. &li:alde 'ope Wor*ersnion*+ "or t!eir &ain doctrinal aut!orit(. !e Court in t!at case !eld t!at t!e <uestioned classi"ication 'as constitutional, and it 'entt!rou%! a step-#(-step anal(sis to arrive at t!is conclusion. o clari"( t!e $ind o" anal(tical process t!at &ust %o into an exa&inationo" t!e e<ual protection clai&, let us <uote "ro& t!e case in e+tenso>

!irdl(, t!e nion contended t!at Repu#lic 6ct No. ** discri&inatoril( "avors t!ose reli%ious sects '!ic! #an t!eir &e&#ers "ro& =oinin% la#or unions, in violation o" 6rticle III, Section 1394 o" t!e 1* ConstitutionA and '!ile said 6ct undul( protects certainreli%ious sects, it leaves no ri%!ts or protection to la#or or%ani5ations.

... t!at said 6ct does not violate t!e constitutional provision o" e<ual protection, "or t!e classi"ication o" 'or$ers under t!e 6ctdependin% on t!eir reli%ious tenets is #ased on su#stantial distinction, is %er&ane to t!e purpose o" t!e la', and applies to all t!e&e&#ers o" a %iven class...

... A :rem:o +re -6e- +or o coo+; oe 4=o ++c + +e, +e66 coo+; m:roe +-; be;o- + re+o+be -ob, =+ + +4 m+; 4or =+r-=: -oe o re-er coo+ =+ +; re+o+be b+ m+; be cocee- 4=c= ::or =e +e, 4 be :=e-, +- =e c=+e6er m e6+e +:obe b+e =+ =e cor +re o cocere- 4= =e 4-om, Ece, :oc;, or e<:e-ec; o + +e +- =+ +ber+ er:re+o o =e coo +or o =e coo+; o e6+o =o- be +-o:e-.

... In 6%lipa( v. Rui5, t!is Court !ad occasion to state t!at t!e %overn&ent s!ould not #e precluded "ro& pursuin% valid o#=ectives

secular in c!aracter even i" t!e incidental result 'ould #e "avora#le to a reli%ion or sect...

!e :rm+r; eec o =e e<em:o "ro& closed s!op a%ree&ents in "avor o" &e&#ers o" reli%ious sects t!at pro!i#it t!eir&e&#ers "ro& a""iliatin% 'it! a la#or or%ani5ation, =e :roeco o +- em:o;ee +6+ =e +66re6+e orce o =ecoece b+r6+6 +6reeme, +- ree6 cer+ ce o + br-e o =er re6o bee and #( eli&inatin% to acertain extent econo&ic insecurit( due to une&plo(&ent, '!ic! is a serious &enace to t!e !ealt!, &orals, and 'el"are o" t!e peopleo" t!e State, =e Ac +o :romoe =e 4eHbe6 o oce;. I or e4 =+ =e e<em:o rom =e eec o coe-=o: +6reeme -oe o -rec; +-+ce, or -m=, =e ere o +; :+rc+r re6o. A=o6= =e e<em:om+; bee =oe 4=o +re member o re6o ec =+ :ro=b =er member rom Eo6 +bor o, =e bee:o =e re6o ec mere; c-e+ +- -rec. !e /esta#lis!&ent clause/ 3o" reli%ion4 does not #an re%ulation onconduct '!ose reason or e""ect &erel( !appens to coincide or !ar&oni5e 'it! t!e tents o" so&e or all reli%ions. !e "ree exerciseclause o" t!e Constitution !as #een interpreted to re<uire t!at reli%ious exercise #e pre"erentiall( aided.

T=e 6+r+; o e+ :roeco o =e +4 o + 6+r+; o e+; =e +::c+o o =e +4 :o + ce o=e +e. I o, =ereore, + rereme, or-er o +o- =e coo+ :ro=bo +6+ e+;, =+ eer;

m+, 4om+ +- c=- =o- be +ece- +e b; + +e.E<ualit( o" operation o" statutes does not &ean indiscri&inateoperation on persons &erel( as suc!, #ut on persons accordin% to t!e circu&stances surroundin% t!e&. It %uarantees e<ualit(, notidentit( o" ri%!ts. !e Constitution does not re<uire t!at t!in%s '!ic! are di""erent in "act #e treated in la' as t!ou%! t!e( 'ere t!esa&e. !e e<ual protection clause does not "or#id discri&ination as to t!in%s t!at are di""erent. It does not pro!i#it le%islation '!ic!is li&ited eit!er in t!e o#=ect to '!ic! it is directed or #( t!e territor( 'it!in '!ic! it is to operate.


6 la' is not invalid #ecause o" si&ple ine<ualit(. !e ver( idea o" classi"ication is t!at o" ine<ualit(, so t!at it %oes 'it!out sa(in%t!at t!e &ere "act o" ine<ualit( in no &anner deter&ines t!e &atter o" constitutionalit(. A =+ rere- o + +- c+c+o =+ be re+o+be, 4=c= me+ =+ =e c+c+o =o- be b+e- o b++ -co 4=c= m+e orre+ -erece =+ m be 6erm+e o =e :r:oe o =e +4 =+ m o be me- o e<6 co-o o;








8/13/2019 G.R. No. 192935 December 7, 2010


+- =+ m +::; e+; o e+c= member o =e c+. T= Cor =+ =e- =+ =e +-+r- +e- =ec+c+o or -co b+e- o + re+o+be o-+o or r+o+ b+ +- o :+:+b; +rbr+r;.

In t!e exercise o" its po'er to &a$e classi"ications "or t!e purpose o" enactin% la's over &atters 'it!in its =urisdiction, t!e state isreco%ni5ed as en=o(in% a 'ide ran%e o" discretion. It is not necessar( t!at t!e classi"ication #e #ased on scienti"ic or &ar$eddi""erences o" t!in%s or in t!eir relation. Neit!er is it necessar( t!at t!e classi"ication #e &ade 'it! &at!e&atical nicet(. ecee6+e c+c+o m+; m+; c+e :ro:er; re o +rro4 -co, or =e e+ :roeco 6+r+; -oeo :rec-e =e e6+re rom reco66 -e6ree o e or =+rm, +- e6+o +--ree- o e + =e; m+;

+::e+r.

e #elieve t!at Repu#lic 6ct No. ** satis"ies t!e a"ore&entioned re<uire&ents. T=e Ac c+e em:o;ee +- 4orer, +o =e eec +- coer+6e o o =o: ecr; +6reeme, o =oe 4=o b; re+o o =er re6o bee +-coco c+o 6 : 4= + +bor o, +- =oe 4=oe re6o -oe o :ro=b member=: +bor o.T=e c+c+o re o re+ or b++, o mere; m+6+r; or 4=mc+, -co...

...!e classi"ication, introduced #( Repu#lic 6ct No. **, t!ere"ore, rests on su#stantial distinctions.

T=e c+c+o ro-ce- b; +- Ac +o 6erm+e o :r:oe. T=e :r:oe o =e +4 :rece; o +o- =oe4=o c+o, bec+e o =er re6o bee, Eo +bor o, rom be6 -e:re- o =er r6= o 4or +- rom be6-me- rom =er 4or bec+e o o =o: ecr; +6reeme.

Repu#lic 6ct No. **, "urt!er&ore, is o me- +::c+o o co-o e<6 + =e me o e+cme. T=e

+4 -oe o :ro-e =+ o be eece or + cer+ :ero- o me o;. It is intended to appl( "or all ti&es as lon% as t!econditions to '!ic! t!e la' is applica#le exist. 6s lon% as t!ere are closed s!op a%ree&ents #et'een an e&plo(er and a la#orunion, and t!ere are e&plo(ees '!o are pro!i#ited #( t!eir reli%ion "ro& a""iliatin% 'it! la#or unions, t!eir exe&ption "ro& t!ecovera%e o" said a%ree&ents continues.

inall(, =e Ac +::e e+; o + member o +- re6o ec = e-e rom :roo. T=e +c =+ =e+4 6r+ + :re6e o member o +- re6o ec c+o b; e re-er =e Ac coo+, or + /e =+e+-ere- o, =e Ac o; reore o =em =er ree-om o +oc+o 4=c= coe- =o: +6reeme =+e +e +4+;,+- : =em =e +me :+e + =e o=er 4orer 4=o +re o :ro=be- b; =er re6o rom Eo6 +bor o.T=e crcm+ce, =+ =e o=er em:o;ee, bec+e =e; +re -ere; +e-, +re o 6r+e- =e +me :re6e,-oe o re-er =e +4 coo+, or eer; c+c+o +o4e- b; =e Coo b; +re oee+;.

T=e mere +c =+ =e e6+e c+c+o m+; re +c+ e+; o o+e o =e r6= o e+:roeco, or eer; c+c+o o :ero or =6 or re6+o b; +4 :ro-ce e+; ome -e6ree, b =e+4 o =ereb; re-ere- +-. A c+c+o o=er4e re+o+be -oe o oe- =e coo m:; bec+e

:r+cce re ome e+;. Ae = m+er, =+ bee +- =+ 4=eeer +::+re rom =e co:e o=e +4 =+ obEec or =e bee o =e :bc +- =e me+ b; 4=c= =e bee o be ob+e- +re o :bcc=+r+cer, =e +4 4 be :=e- ee =o6= c-e+ +-++6e m+; occr o --+ be;o- =oe eEo;e- b; =e6eer+ :bc.*

!e a#ove anal(sis is t!e $ind o" processed reasonin% to '!ic! EO 1 s!ould #e su#=ected. !e &a=orit( Decision "alls s!ort o"satis"(in% t!is process.

O =e r e. Is t!e classi"ication reasona#le, #ased on su#stantial distinctions t!at &a$e "or real di""erence !e %overn&ent!as alread( %iven several reasons '!( t!e distinction #et'een t!e ad&inistration o" President 6rro(o is di""erent "ro& ot!er pastad&inistrations. !e distinction does not lie in an( clai& t!at corruption is t!e sole !all&ar$ o" t!e 6rro(o ad&inistration "ar "ro& it.!e distinction lies in reason ad&inistrative constraints, availa#ilit( o" evidence, i&&ediate past acts, non-prescription o" causes o"actions all o" '!ic! are not '!i&sical, contrived, super"icial or irrelevant. It &ust also #e e&p!asi5ed t!at t!e Court, as <uoteda#ove, reco%ni5es t!at m+; c+e, =e c+c+o e +rro4 -co. e !ave alread( discussed !o' in (una v.armiento t!e Court reco%ni5ed su#classes 'it!in a class and up!eld t!e narro' distinction &ade #( Con%ress #et'een t!ese

su#classes. So i" past ad&inistrations !ave alread( #een t!e su#=ect o" a "act-"indin% co&&ission, '!ile one particularad&inistration !as not #een so su#=ected, t!at alone is a %ood #asis "or &a$in% a distinction #et'een t!e& and an ad&inistrationt!at !as not (et #een investi%ated. It &ust #e e&p!asi5ed t!at t!e /ictorianocase, '!ic! t!e &a=orit( !eavil( relied on, reiteratedt!at as lon% as t!ere is a pu#lic #ene"it to #e o#tained in a %overn&ent action, incidental advanta%e 3and conversel(, disadvanta%e4to a %roup is not su""icient to upset t!e presu&ption o" constitutionalit( o" a %overn&ent action.

O =e eco- e. !e classi"ication is %er&ane to t!e purpose o" t!e la' to %et a !eadstart on t!e ca&pai%n a%ainst %ra"t andcorruption. I" t!e investi%ation into t!e root o" corruption is to %ain traction, it &ust start so&e'!ere, and t!e #est place to start is toexa&ine t!e i&&ediate past ad&inistration, not distant past ad&inistrations.




8/13/2019 G.R. No. 192935 December 7, 2010


O =e =r- e. O" course t!is is not relevant in t!is case, "or t!e la' #ein% exa&ined in /ictoriano 'as one t!at %rantedprospective ri%!ts, and not one t!at involves "act-"indin% into past acts as 'it! EO 1.

O =e + e. !is as$s '!et!er t!e la' applies e<uall( to all &e&#ers o" t!e se%re%ated class. It &ust #e e&p!asi5ed t!at int!e /ictoriano case, t!is last test 'as applied not to all t!e 'or$ers in t!e #ar%ainin% unit, #ut it 'as applied to t!e su#class o"'or$ers '!ose reli%ions pro!i#it t!e& "ro& =oinin% la#or unions. In application to t!is case, t!e <uestion s!ould t!en !ave #een, not'!et!er t!ere is e<ualit( o" treat&ent #et'een all political ad&inistrations under EO 1, #ut '!et!er 'it!in t!e su#class o" t!ird levelpu#lic o""icials o" t!e 6rro(o ad&inistration t!at is, t!e su#=ect o" EO 1 t!ere is une<ual treat&ent. O#viousl(, t!e ans'er is no.

!e &a=orit( applied t!e last test #ac$'ards #( as$in% '!et!er t!ere is e<ualit( o" treat&ent a&on% all political ad&inistrations andconcludin% t!at t!ere 'as no e<ualit( o" treat&ent, even #e"ore it could ans'er t!e "irst test o" '!et!er t!e classi"ication #et'eent!e 6rro(o ad&inistration and ot!er past ad&inistrations 'as reasona#le.

It &ust #e e&p!asi5ed t!at t!e /ictoriano case on '!ic! t!e &a=orit( !eavil( relies states in several parts t!at classi"ication &ustnecessaril( result in ine<ualit( o" treat&ent and t!at suc! ine<ualit( does not %ive rise to a constitutional pro#le&. It is t!e lac$ o"reason t!at %ives rise to a constitutional issue, not t!e ine<ualit( per se. o <uote a%ain>

!e &ere "act t!at t!e le%islative classi"ication &a( result in actual ine<ualit( is not violative o" t!e ri%!t to e<ual protection, "or ever(classi"ication o" persons or t!in%s "or re%ulation #( la' produces ine<ualit( in so&e de%ree, #ut t!e la' is not t!ere#( renderedinvalid. 6 classi"ication ot!er'ise reasona#le does not o""end t!e constitution si&pl( #ecause in practice it results in so&eine<ualit(. 6nent t!is &atter, it !as #een said t!at '!enever it is apparent "ro& t!e scope o" t!e la' t!at its o#=ect is "or t!e #ene"ito" t!e pu#lic and t!e &eans #( '!ic! t!e #ene"it is to #e o#tained are o" pu#lic c!aracter, t!e la' 'ill #e up!eld even t!ou%!incidental advanta%e &a( occur to individuals #e(ond t!ose en=o(ed #( t!e %eneral pu#lic.*8

Selective Investi%ation, En"orce&ent and Prosecution

act-"indin% or investi%ation can onl( #e%in #( identi"(in% t!e p!eno&enon, event or &atter t!at is to #e investi%ated. !en it canonl( proceed i" t!e "act-"inder, or t!e aut!orit( under '!o& !e 'or$s, identi"ies or selects t!e persons to #e investi%ated.

!e validit( o" t!e eliciano Co&&ission created #( 6d&inistrative Order No. 36O4 9@ o" "or&er President 6rro(o is a""ir&ed #( t!e&a=orit( Decision. 6O 9@ 5eroed in on t!e investi%ation o" /t!e re#ellion o" &is%uided &ilitar( o""icers last Jul( 3)*4,/ in order /toinvesti%ate t!e roots o" t!e re#ellion and t!e provocations t!at inspired it,/ and concludes t!at /t!is re#ellion is deplora#le./ 6O 9@la#eled t!e o""icers involved in t!e Jul( )* Oa$'ood re#ellion as /&is%uided/ and cast t!eir actions as /re#ellion/ and/deplora#le./ President 6rro(o selected a class t!e o""icers involved in t!e Jul( )* /re#ellion/ in contradistinction to all ot!er all&ilitar( o""icers '!o !ad ever re#elled a%ainst t!e Repu#lic since its "oundin%. !e acts 'ere sti%&ati5ed as acts o" /re#ellion,/ acri&e punis!a#le #( la'. !e &a=orit( does not conde&n t!is classi"ication &ade in 6O 9@ #( President 6rro(o '!ic! usesconde&nator( lan%ua%e on t!e class o" people tar%eted. In contrast, t!e lan%ua%e o" EO 1 o" President 6<uino is &ild, 'illin% to%rant t!e ad&inistration o" President 6rro(o t!e #ene"it o" t!e dou#t #( usin% ad=ectives to denote t!e tentativeness o" t!eo#servations on corruption suc! as /alle%ed/ and /reported/ instead o" treatin% t!e& as actualit(. 6O 9@ is a""ir&ed '!ile EO 1 is

struc$ do'nA no explanation "or t!e di""erin% treat&ent is &ade #( t!e &a=orit( Decision. !is di""erence in treat&ent is distur#in%considerin% t!e lon% !istor( o" t!e treat&ent #( courts o" t!e de"ense o" selective investi%ation and prosecution.

In "ul"illin% its dut( to execute t!e la's and #rin% violators t!ereo" to =ustice, t!e Executive is presu&ed to underta$e cri&inalprosecution /in %ood "ait! and in a nondiscri&inator( "as!ion./*9

!e %overn&ent !as #road discretion over decisions to initiate cri&inal prosecutions*@ and '!o& to prosecute.*Indeed, t!e "act t!att!e %eneral evil 'ill onl( #e partiall( corrected &a( serve to =usti"( t!e li&ited application o" cri&inal la' 'it!out violatin% t!e e<ualprotection clause.+ ;ere laxit( in t!e en"orce&ent o" la's #( pu#lic o""icials is not a denial o" e<ual protection.+1

6lt!ou%! suc! discretion is #road, it is not 'it!out li&it.+) In order to constitute denial o" e<ual protection, selective en"orce&ent &ust#e deli#eratel( #ased on un=usti"ia#le or ar#itrar( classi"icationA t!e &ere "ailure to prosecute all o""enders is no %round "or t!e clai&o" a denial o" e<ual protection.+* o support a clai& o" selective prosecution, a de"endant &ust esta#lis! a violation o" e<ualprotection and s!o' t!at t!e prosecution 314 !ad a discri&inator( e""ect and 3)4 'as &otivated #( a discri&inator( purpose.++ irst,!e &ust s!o' t!at /!e !as #een sin%led out "or prosecution '!ile ot!er si&ilarl( situated %enerall( !ave not #een proceeded

a%ainst "or t!e t(pe o" conduct "or&in% t!e #asis o" t!e c!ar%e a%ainst !i&./+

Second, !e &ust prove t!at !is selection "orprosecution 'as invidious or in #ad "ait! and 'as /b+e- o m:ermbe co-er+o c= + r+ce, re6o, or =e -ereo :ree =e e<erce o coo+ r6=./+8 In 6&erican constitutional !istor(, it is t!e traditionall( oppressed racial orreli%ious &inorities and t!e politicall( disen"ranc!ised '!o !ave succeeded in &a$in% a case o" une<ual protection '!en t!eirpre=udiced status is s!o'n to #e t!e principal invidious or #ad "ait! consideration "or t!e selective prosecution.

!e standard "or de&onstratin% selective prosecution t!ere"ore is de&andin%> a /presu&ption o" re%ularit( supports prosecutorialdecisions and in t!e a#sence o" clear evidence to t!e contrar(, courts presu&e t!at t!e( !ave properl( disc!ar%ed t!eir o""icial"unctions./+9

































8/13/2019 G.R. No. 192935 December 7, 2010


In People v. Dela Piedra,+@ t!e P!ilippine Supre&e Court, ad!erin% to t!e precedents set in 6&erican =urisprudence, li$e'ise deniedt!e e<ual protection ar%u&ent o" an ille%al recruiter, '!o clai&ed t!at ot!ers '!o !ad li$e'ise per"or&ed acts o" recruit&entre&ained scot-"ree>

!e prosecution o" one %uilt( person '!ile ot!ers e<uall( %uilt( are not prosecuted, !o'ever, is not, #( itsel", a denial o" t!e e<ualprotection o" t!e la's. !ere t!e o""icial action purports to #e in con"or&it( to t!e statutor( classi"ication, an erroneous or &ista$enper"or&ance o" t!e statutor( dut(, alt!ou%! a violation o" t!e statute, is not 'it!out &ore a denial o" t!e e<ual protection o" t!e la's.!e unla'"ul ad&inistration #( o""icers o" a statute "air on its "ace, resultin% in its une<ual application to t!ose '!o are entitled to #e

treated ali$e, is not a denial o" e<ual protection unless t!ere is s!o'n to #e present in it an ele&ent o" intentional or purpose"uldiscri&ination. !is &a( appear on t!e "ace o" t!e action ta$en 'it! respect to a particular class or person, or it &a( onl( #e s!o'n#( extrinsic evidence s!o'in% a discri&inator( desi%n over anot!er not to #e in"erred "ro& t!e action itsel". 2ut a discri&inator(purpose is not presu&ed, t!ere &ust #e a s!o'in% o" /clear and intentional discri&ination./ 6ppellant !as "ailed to s!o' t!at, inc!ar%in% appellant in court, t!at t!ere 'as a /clear and intentional discri&ination/ on t!e part o" t!e prosecutin% o""icials.

!e discretion o" '!o to prosecute depends on t!e prosecutions sound assess&ent '!et!er t!e evidence #e"ore it can =usti"( areasona#le #elie" t!at a person !as co&&itted an o""ense. !e presu&ption is t!at t!e prosecutin% o""icers re%ularl( per"or&ed t!eirduties, and t!is presu&ption can #e overco&e onl( #( proo" to t!e contrar(, not #( &ere speculation. Indeed, appellant !as notpresented an( evidence to overco&e t!is presu&ption. !e &ere alle%ation t!at appellant, a Ce#uana, 'as c!ar%ed 'it! t!eco&&ission o" a cri&e, '!ile a a&#oan%ueQa, t!e %uilt( part( in appellants e(es, 'as not, is insu""icient to support a conclusiont!at t!e prosecution o""icers denied appellant e<ual protection o" t!e la's. 3E&p!asis supplied4

In t!e instant case, t!e "act t!at ot!er ad&inistrations are not t!e su#=ect o" t!e PCBs investi%ative ai& is not a case o" selectiveprosecution t!at violates e<ual protection. !e Executive is %iven #road discretion to initiate cri&inal prosecution and en=o(s clear

presu&ption o" re%ularit( and %ood "ait! in t!e per"or&ance t!ereo". or petitioners to overco&e t!at presu&ption, t!e( &ust carr(t!e #urden o" s!o'in% t!at t!e PC is a preli&inar( step to selective prosecution, and t!at it is laden 'it! a discri&inator( e""ect anda discri&inator( purpose. :o'ever, petitioner !as sorel( "ailed in disc!ar%in% t!at #urden.

!e presu&ption o" %ood "ait! &ust #e o#served, especiall( '!en t!e action ta$en is pursuant to a constitutionall( ens!rined statepolic( suc! as t!e ta$in% o" positive and e""ective &easures a%ainst %ra"t and corruption.+ or t!is purpose, t!e President createdt!e PC. I" a la' neit!er #urdens a "unda&ental ri%!t nor tar%ets a suspect class, t!e Court &ust up!old t!e classi"ication, as lon%as it #ears a rational relations!ip to so&e le%iti&ate %overn&ent end.

!e sa&e presu&ption o" %ood "ait! and latitude in t!e selection o" '!at a trut! co&&ission &ust "act-"ind &ust #e %iven to t!ePresident. oo 'ide a &andate 'ould no dou#t dro'n t!e co&&ission in a sea o" !istor(, in t!e process potentiall( i&pedin% t!e&ore "or'ard-loo$in% aspects o" its 'or$.1 o re<uire t!e PC to loo$ into all acts o" lar%e-scale corruption in all priorad&inistrations 'ould #e to &a$e trut!-tellin% overl( co&pre!ensive, resultin% in a super"icial "act-"indin% investi%ation o" a &ultitudeo" alle%ations 'it!out dept! and insi%!t"ul anal(sis. !e P!ilippinesB past experience 'it! ad !oc investi%atin% co&&issions !as#een c!aracteri5ed #( a "ocus on t!e trut! re%ardin% a $e( period or event in our collective !istor( and #( a reasona#le ti&e "ra&e"or ac!ievin% t!eir purpose, i.e., t!e assassination o" Nino( 6<uino,) t!e 1@ coup dB^tat,* t!e )* Oa$'ood &utin(,+ t!e extra-

=udicial $illin%s o" &edia and activists, and private ar&ed %roups.8

:ere, petitioners '!o are not even t!e in=ured parties are invo$in% t!e e<ual protection clause. !eir standin% to raise t!is issue isseriousl( contested in t!e Dissent o" Justice Carpio ;orales. !e( do not clai& in an( &anner t!at t!e( are t!e su#=ect o" EO 1.Courts !ave 'arned t!at t!e ri%!t o" e<ual protection o" t!e la' /&a( not #e perversel( invo$ed/ to =usti"( desistance #( t!eaut!orities "ro& t!e prosecution o" a cri&inal case, =ust #ecause not all o" t!ose '!o are pro#a#l( %uilt( t!ereo" 'ere c!ar%ed.9 !isc!aracteri5ation 'ould appl( especiall( i" t!e ones '!o invo$e t!e e<ual protection clause are t!ose '!o are not in=ured #( t!econtested executive action.

EO 1 activities are at &ost initiator( investi%ations. !ere is no preli&inar( investi%ation &uc! less prosecution to #e conductedunder t!e auspices o" EO 1. !e PC is tas$ed to /collect, receive, revie' and evaluate evidence related to or re%ardin% t!e caseso" lar%e scale corruption,/@ tas$s t!at constitutes not!in% &ore t!an a %eneral in<uir( into suc! reported cases in t!e previousad&inistration. Si&ilar to an initiator( police investi%ation, t!e PC is tas$ed 'it! %eneral "act-"indin% to uncover t!e trut! o" t!eevents pertainin% to an alle%ed unsolved cri&e. o stri$e do'n t!e PCBs &andate to investi%ate t!e previous ad&inistration si&pl(#ecause ot!er ad&inistrations are not i&&ediatel( included is tanta&ount to sa(in% t!at a police investi%ation o" a recent &urder

case is violative o" e<ual protection #ecause t!ere are ot!er prior (et e<uall( !einous &urders t!at re&ain uninvesti%ated andunsolved #( t!e police.

!at renders t!e plaint re%ardin% an alle%ed violation o" t!e e<ual protection clause ridiculous is t!at it is #ein% raised at t!einception sta%e "or t!e deter&ination o" possi#le cri&inal lia#ilit(, '!ere t!reat to li#ert( is &ost a#sent. In contrast, 'it! respect topetitions to stop later and &ore "reedo&-t!reatenin% sta%es in t!e deter&ination o" cri&inal lia#ilit( suc! as in "or&al cri&inalinvesti%ations and prosecutions, P!ilippine courts instinctivel( re=ect t!e de"ense o" a suspect or accused t!at t!e investi%ation isille%iti&ate #ecause ot!ers '!o &a( !ave also violated t!e relevant rule, are not #ein% investi%ated. In 0allardo v. People,8 t!eSupre&e Court !eld t!at t!ere 'as no violation o" t!e e<ual protection clause '!en t!e O&#uds&an reco&&ended t!e "ilin% o" anin"or&ation a%ainst a pu#lic o""icer, even i" it !ad previousl( dis&issed sixteen 3184 ot!er cases o" si&ilar "actual circu&stances>









































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!e contention t!at petitionersB ri%!t to e<ual protection o" t!e la' !as #een trans%ressed is e<uall( untena#le. !e e<ual protectionclause re<uires t!at t!e la' operates uni"or&l( on all persons under si&ilar circu&stances or t!at all persons are treated in t!esa&e &anner, t!e conditions not #ein% di""erent, #ot! in privile%es con"erred and t!e lia#ilities i&posed. It allo's reasona#leclassi"ication. I" t!e classi"ication is c!aracteri5ed #( real and su#stantial di""erences, one class &a( #e treated di""erentl( "ro&anot!er. Si&pl( #ecause t!e respondent O&#uds&an dis&issed so&e cases alle%edl( si&ilar to t!e case at #ar is not su""icient toi&pute ar#itrariness or caprice on !is part, a#sent a clear s!o'in% t!at !e %ravel( a#used !is discretion in pursuin% t!e instant case.!e O&#uds&an dis&issed t!ose cases #ecause !e #elieved t!ere 'ere no su""icient %rounds "or t!e accused t!erein to under%otrial. On t!e ot!er !and, !e reco&&ended t!e "ilin% o" appropriate in"or&ation a%ainst petitioners #ecause t!ere are a&ple %rounds

to !old t!e& "or trial. :e 'as onl( exercisin% !is po'er and disc!ar%in% !is dut( #ased upon t!e constitutional &andate o" !is o""ice.Stated ot!er'ise, t!e circu&stances o#tainin% in t!e nu&erous cases previousl( dis&issed #( t!e O&#uds&an are entirel(diver%ent "ro& t!ose !ere existin%. 3E&p!asis supplied4

Even on t!e assu&ption t!at t!e reco&&endation o" t!e PC is t!at acts o" %ra"t and corruption 'ere indeed co&&itted #( t!e 6rro(o ad&inistration, t!ere is still a lon% 'a( to %o #e"ore t!e reco&&endation 'ould ripen to cri&inal prosecution, &uc! lessconviction. !e O&#uds&an &ust accept t!e re"erral and conduct its o'n preli&inar( investi%ation. It &ust "ind pro#a#le cause,t!en "ile t!e appropriate in"or&ation. !e Court &ust t!en preside over a cri&inal trial at '!ic! t!e "indin%s o" t!e PC !ave noconclusive e""ect on t!e CourtBs ulti&ate =ud%&ent, in t!e sa&e 'a( t!e( treated t!e "indin%s o" t!e Davide Co&&ission in Mapunanv. Court o" 6ppeals>81

e do not 'is! to deni%rate "ro& t!e 'isdo& o" t!e Davide Co&&ission. :o'ever, its "indin%s cannot #e dee&ed as conclusiveand #indin% on t!is Court, or an( court "or t!at &atter . Not!in% in R.6. No. 8@*) &andates t!at t!e "indin%s o" "act or evaluations o"t!e Davide Co&&ission ac<uire #indin% e""ect or ot!er'ise counter&and t!e deter&inative "unctions o" t!e =udiciar(. !e properrole o" t!e "indin%s o" "act o" t!e Davide Co&&ission in relation to t!e =udicial s(ste& is !i%!li%!ted #( Section 1 3c4 o" R.6. No.8@*), '!ic! re<uires t!e Co&&ission to HKtGurn over to t!e appropriate prosecutorial aut!orities all evidence involvin% an( person

'!en in t!e course o" its investi%ation, t!e Co&&ission "inds t!at t!ere is reasona#le %round to #elieve t!at !e appears to #e lia#le"or an( cri&inal o""ense in connection 'it! said coup d^tat.B

!atever "actual "indin%s or evidence uneart!ed #( t!e Davide Co&&ission t!at could "or& t!e #asis "or prosecutorial action stillneed #e evaluated #( t!e appropriate prosecutorial aut!orities to serve as t!e nucleus o" eit!er a cri&inal co&plaint or exculpationt!ere"ro&. I" a cri&inal co&plaint is indeed "iled, t!e sa&e "indin%s or evidence are still su#=ect to t!e nor&al revie' and evaluationprocesses underta$en #( t!e =ud%e, to #e assessed in accordance 'it! our procedural la'. 3E&p!asis and underscorin% supplied4

/=o $e+r =e Tr=

rut! co&&issions operate on t!e pre&ise t!at t!e trut! i" "aced s<uarel(, docu&ented t!orou%!l(, and ac$no'led%ed o""iciall( 'ill reduce t!e li$eli!ood t!at a repetition o" %overn&ent a#uses 'ill recur in t!e "uture.8)O""icial ac$no'led%&ent o" t!e trut! isextre&el( po'er"ul in t!e !ealin% process, especiall( in an at&osp!ere previousl( do&inated #( o""icial denial.8* 6side "ro& t!eircat!artic value, trut! co&&issions li$e t!e PC can #e use"ul in uncoverin% t!e causes and patterns t!at led to suc! corruption, i" itindeed existed, so t!at it &a( #e prevented in t!e "uture. !e a#sence o" an( "or& o" accounta#ilit( "or pu#lic o""icialsB past

&isconduct o" a %rave nature and &assive scale 'ill pro&ote a culture o" i&punit(. I" t!e present ad&inistration does notde&onstrate t!at it can !old accounta#le persons '!o co&&itted acts o" corruption, suc! ina#ilit( &a( #e interpreted as a /licenseto en%a%e in "urt!er acts o" corruption/8+ and e&#olden pu#lic o""icials to steal "ro& t!e %overn&ent co""ers &ore o"ten and in%reater <uantit(.

!e Concurrin% Opinion o" &( estee&ed collea%ue Justice 2rion spea$s to t!e "ear t!at t!e PC 'ould #e a &ind-conditionin%co&&ission suc! t!at i" t!e O&#uds&an, t!e Sandi%an#a(an or t!e Supre&e Court itsel" 'ere to re=ect t!e PCBs "indin%s, t!e('ould incur t!e ire o" t!e people. !e potential i&&inence o" pu#lic 'rat! 'ould t!us serve as a deterrent to re=ection 3and anincentive to acceptance4 o" t!e "indin%s o" t!e PC. :e re%ards t!e release o" t!e conclusions o" t!e PC as a /pri&in%/ &ec!anis&upon t!e pu#lic, t!e O&#uds&an and t!e Court to concur 'it! t!e PCBs 'a( o" t!in$in%. :e o#=ects to t!e PCBs appropriation o"t!e 'ord /trut!/ and assu&es t!at all conclusions contrar( to t!e PCBs 'ould #e &ore li$el( la#eled as /untrut!./ 6ccordin% to t!eConcurrin% Opinion, #ecause President 6<uino is !i%!l( trusted #( ilipinos, t!en repeated /trut!/ "ro& !i& or !is %overn&ent 'ould#e #elieved, '!olesale and 'it! "inalit(, #( a credulous people. !is 'ould t!us, t!e Concurrin% Opinion states, #rin% unduepressure to #ear on t!e O&#uds&an, t!e Sandi%an#a(an, and t!e Supre&e Court> in t!e event o" an( o" t!ese #odies /%oKin%Ga%ainst t!e Co&&issionBs report,/ t!e conse<uent pu#lic perception t!at said #od( sided 'it! an /untrut!/ 'ould co&pro&ise /t!eaut!orit(, independence, and even t!e inte%rit( o" t!ese constitutional #odies ... to t!e pre=udice o" t!e =ustice s(ste&./8 Justice

2rion t!eori5es t!at, in t!e li%!t o" t!e potential o" t!e Co&&issionBs in"luence to /pri&e t!e pu#lic/ and /%o #e(ond t!e level o"pri&in%/ in a 'a( t!at /can a""ect t!e pu#lic environ&ent as 'ell as t!e t!in$in% o" #ot! t!e decision &a$ers in t!e cri&inal =ustices(ste& and t!e pu#lic in %eneral,/ t!e PCBs pri&ar( role is /ne%ated in actual application #( t!e title rut! Co&&ission and itstrut!-tellin% "unction./88 6ccordin% to t!e Concurrin% Opinion, t!is renders t!e Co&&ission an /unreasona#le &eans to a reasona#leo#=ective./89 I #elieve t!ese ar%u&ents #etra( a ver( poor vie' o" t!e ilipino people and t!at t!is vie' lies at t!e root o" !is /dueprocess/ pro#le&.

oven as #indin% t!reads t!rou%!out t!e Concurrin% Opinion are a denial o" an i&#alance o" po'er and an un'illin%ness to see its!i"t in "avor o" a 'ea$er %roup see$in% redress "or t!e perpetration o" in=ustice a%ainst its &e&#ers. It is an o"t-o#servedp!eno&enon t!at '!en t!ere are atte&pts to address past a#uses co&&itted #( a po'er"ul %roup, and '!en steps are ta$en torecti"( t!e s(ste&ic ine<ualities, &e&#ers o" t!e po'er"ul %roup decr( t!e t!reats represented #( t!ese e""orts to re#alance t!e


















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scales. In t!is &anner cries and accusations o" reverse /discri&ination/ and /persecution/ are raised #( persons '!o !ave toans'er to t!e de&ands o" t!ose see$in% t!e ri%!tin% o" past 'ron%s. !is reaction &a( #e vie'ed as part o" a lar%er pattern o"#ac$las!, &eant to #ot! /las! #ac$/ a%ainst t!ose perceived to #e #e!ind t!e t!reat to t!e securit( o" po'er and to return t!es(ste& to t!e state it occupied #e"ore atte&pts to see$ redress 'ere &ade.8@ In t!e nited States, t!is pattern is evident in various#ills, policies and initiatives "ro& t!e ca&pai%n r!etoric o" a presidential contender, i&&i%ration #ills, and la's on lan%ua%e touniversit( ad&issions policies t!at ai& to c!allen%e and &ini&i5e an( %ains &ade #( disadvanta%ed and su#ordinated %roupsover t!e past (ears.8

o #e sure, t!e di""erences #ot! in !istor( and circu&stance, #et'een t!e #ac$las! experienced #( various disprivile%ed %roups int!e .S. and t!e situation at !and, are not insi%ni"icant. :o'ever, t!e parallels t!at can #e dra'n are stri$in% and unsettlin%. In ourpresent context, it is t!e ilipino people a %reat &a=orit( o" '!o& !ave #een disprivile%ed #( institutions t!at !eavil( "avor t!erulin% elite t!at !ave su""ered t!e da&a%in% conse<uences o" %ra"t and corruption. It is t!e ilipino people '!o !ave #een 'ron%ed#( past a#uses and s(ste&atic ine<ualit(A and it is t!e( '!o no' desire =ustice in trut!. In t!e P!ilippine context, t!e pre-redressstate 'as t!at o" an i&#alance so %reat it allo'ed t!e i&&unit( o" past !i%! o""icials 3t!e privile%ed class4 "ro& pu#lic accounta#ilit(A&e&#ers "ro& suc! %roup 'ill tr( to return to t!at state #( see$in% to continue eludin% accounta#ilit(.

2( i%norin% t!e ilipino pu#licBs experience as a 'itness to t!e "rustration o" atte&pts to !old t!e past ad&inistration accounta#le "orits reported &isdeeds, and "ra&in% it instead as a %roup t!at stands read( to convict past o""icials at t!e #ar o" pu#lic opinion, t!eConcurrin% Opinion turns social realit( on its !ead. It &ini&i5es t!e status o" t!e ilipino people as a %roup 'ron%ed #( t!ei&#alance o" po'er and t!e #etra(al o" pu#lic trust. It i%nores t!e need o" t!is %roup to see t!ese recti"ied. It ascri#es an excess o"stren%t! to pu#lic opinion and %rounds its lo%ic on "ear o" t!e pu#lic actin% as an an%r( &o#. It does not attri#ute t!e properi&portance to t!e active, participator( role t!e ilipino people desire to ta$e in t!e process o" dealin% 'it! t!e possi#le &isdeeds o"t!e past.

I&plicit in Justice 2rionBs Concurrin% Opinion are t!e roles t!e pu#lic is expected to ta$e> t!at o" passive o#server, receiver o"in"or&ation and suscepti#le to t!e #randin% o" /trut!/ and its repetitionA9 and t!at o" a source o" pressure. In t!e latter role, t!eConcurrin% Opinion envisions t!e ilipino people, !avin% ad=ud%ed %uilt accordin% to '!at it 'as told #( t!e PC and t!e &edia,'ieldin% t!e t!reat o" pu#lic disapproval a%ainst t!e O&#uds&an and t!e =udiciar( so as to s!i"t t!e #urden to t!ese #odies tode&onstrate proo" and t!e #asis "or t!eir actions i " t!e( 'ere to disa%ree 'it! t!e "indin%s o" t!e PC.91

!is is %ross speculation. It does not "ollo' t!at repetition o" in"or&ation %uarantees t!e acceptance o" its veracit(A to &a$e t!atlo%ical leap in t!is instance is to insinuate t!at repetition 'ould ro# t!e ilipino people o" t!e capacit( to &a$e distinctions #et'een'!at to accept and '!at to re=ect. Neit!er does it "ollo' t!at t!e O&#uds&an and t!e =udiciar( &ust inevita#l( accede to pu#liccla&or, or t!at t!e entr( o" pu#lic opinion into t!e discussion 'ould cause a /<ualitative c!an%e in t!e cri&inal =ustice s(ste&/ and'ea$en /reliance on t!e la', t!e rules and =urisprudence./9)

!e pu#lic does not need s!elterin% "ro& t!e /potentiall( pre=udicial e""ects o" trut!-tellin%./ Nor is t!e pu#lic to #e vie'ed asun'ittin% victi&s to /a nois( &inorit( K'!oG can c!an%e t!e course o" a case si&pl( #ecause o" t!eir noise and t!e &edia attentiont!e( %et./9* !e ilipino people !ave a %enuine sta$e in t!e addressin% o" a#uses possi#l( co&&itted #( t!e past ad&inistration and

are entitled to in"or&ation on t!e sa&e.

Stri$in% do'n e""orts to %ive t!e pu#lic in"or&ation re%ardin% t!e &isdeeds o" po'er"ul o""icials sends a si%nal o" t!e continuin%do&inance o" /&i%!t &a$es ri%!t/ and t!e "utilit( o" atte&ptin% to !old pu#lic o""icials accounta#le "or t!eir actions. Conversel(, #(carr(in% out investi%ations o" t!e past actions o" pu#lic o""icials, and #( !oldin% up its results to pu#lic scrutin( and criticis&, t!e%overn&ent rein"orces respect "or t!e rule o" la' and educate t!e people on t!e nature and extent o" past 'ron%doin%.9+ ;oreover,t!e c!aracteri5ation o" pu#lic discussion t!e /second "oru&/ as an inappropriate venue "or t!e release o" t!e PCs "indin%sdevalues t!e utilit( and &eanin% t!at trut! possesses "or t!e a%%rieved %roup, and deni%rates t!e need "or t!e construction andrepair o" t!e %roupBs collective &e&or(. Indeed, t!e Concurrin% Opinion i&plies t!at t!e PCs in"luence on pu#lic perceptions andconse<uentl( t!e s!apin% o" t!e collective &e&or( o" ilipinos 'ill onl( insti%ate &ore in=ustice.

o t!e contrar(, t!e need to s!ape collective &e&or( as a 'a( "or t!e pu#lic to con"ront in=ustice and &ove to'ards a &ore =ustsociet( s!ould not #e di&inis!ed or denied. !e Concurrin% Opinion disre%ards t!e si%ni"icance to =ustice o" '!at is seen andre&e&#ered and eli&inates t!e vital role o" t!e people t!e&selves in /constructin% collective &e&ories o" in=ustice as a #asis "orredress./9 !is disre%ard need not prevail. !ere is &uc! value to #e "ound in &e&or(, as :o& and a&a&oto recounted>

or &an( o" t!e 1, P!ilippine citi5ens tortured and &urdered "or t!eir political opposition to t!e "or&er erdinand ;arcosre%i&e, res!apin% &e&or( #eca&e #ot! a &eans to c!allen%e in=ustice and a ps(c!olo%ical end in i tsel". Consider t!e an%uis! o"t!e "a&il( o" 6rc!i&edes ra=ano, a colle%e student '!o posed a &ildl( critical <uestion to ;arcoss dau%!ter at a "oru& and 'as'!is$ed a'a(, tortured "or da(s, and t!ro'n o"" a #uildin%. or !is "a&il(, and t!ousands o" ot!ers, t!ere existed t!e need to createa ne' &e&or( #e(ond t!e excruciatin% stor( o" personal loss and su""erin% a &e&or( t!at included a sense o" social =ustice and%overn&ent accounta#ilit(. o 'rite t!is ne' &e&or( collectivel(, &an( "a&ilies, la'(ers, #ureaucrats ris$ed &uc! in t!eP!ilippines to aid t!e t!irteen-(ear !u&an ri%!ts &ultidistrict class action liti%ation in t!e nited States.98

!ile it is true t!at pu#lic opinion 'ill #e in"luenced #( t!e in"or&ation t!at t!e pu#lic can access, it 'ould #e specious to clai& t!att!e possi#le turnin% o" t!e tide o" pu#lic opinion a%ainst t!ose su#=ect to investi%ation is tanta&ount to a conviction #e"ore t!e court

























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o" t!e ilipino people. o declare t!e ilipino pu#lic undeservin% o" t!e trut! on t!e %rounds o" its supposed lac$ o" capacit( to deal'it! t!e trut! and its alle%ed suscepti#ilit( to t!e /pri&in%/ e""ect o" t!e PCs "indin%s, '!ile i%norin% t!e pu#licBs need to $no' t!etrut! and to see$ redress "or 'ron%s, is to den( t!e pu#lic t!e &eans to &ove to'ards social =ustice.

In Ra5on v. a%itis,99 t!e Court, spea$in% t!rou%! no less t!an Justice 2rion !i&sel", a""ir&ed t!e %rant o" t!e rit o" 6&paropetitioned #( t!e 'i"e o" En%ineer ;orced a%itis, and touc!ed on t!e /=e r6= o re+e o =e -+::e+re- :ero +- o=e oce; + + 4=oe o o4 =e r= o =e +e +- 4=ere+bo o =e -+::e+re- +- o =e :ro6re +- reo =e e6+o,/ as expressed in t!e nited Nations Declaration on t!e Protection o" 6ll Persons "ro& En"orced

Disappearance. It 'ould #e inconsistent "or t!is Court not to a""ord t!e sa&e level o" openness and accounta#ilit( in en"orceddisappearances o" individuals to alle%ations o" cri&inal acts o" &assive corruption co&&itted a%ainst t!e entire P!ilippine nation,under t!e "unda&ental pre&ise o" 'a:on v. agitis t!at t!e ilipino !ave t!e ri%!t to $no' and can !andle t!e trut!. !e pu#licBsri%!t to $no'9@ and t!e conco&itant pu#lic polic( o" "ull pu#lic disclosure9 support t!e "act-"indin% &andate o" t!e PC to uncovert!e trut! o" t!ese alle%ations and reports in t!e 6rro(o ad&inistration.@ Justice 2rionBs Concurrin% Opinion does not la( do'nenou%! le%al #asis "or !is ar%u&ent t!at t!e PC !as to #e struc$ do'n due to t!e possi#ilit( o" #ias to #e created in t!e pu#lic &indt!rou%! pu#lic reports o" t!e PC and t!e inordinate pressure t!is #ias 'ill #rin% on t!e O&#uds&an and t!e =udiciar(. !eP!ilippine =udiciar( !as !ad &ore t!an a centur(Bs 'ort! o" experience dealin% 'it! =udicial cases and cri&inal investi%ations undert!e !ars! li%!t o" pu#lic scrutin(, (et not one case or investi%ation !as #een stopped on t!e si&ple #asis o" t!e pu#lic "or&in% astron% opinion on t!e& and voicin% t!is opinion in a loud &anner.@1 6 =ud%e is expected to act i&partiall( and independentl(, underan( set o" circu&stances, 'it! or 'it!out t!e pu#lic as 'itness. !is is t!e role o" a =ud%e and i" t!e neutralit( re<uired o" a =ud%e isnot &aintained, t!e "ault lies not in t!e creation o" a "act-"indin% co&&ission t!at started t!e searc! "or trut!, #ut in t!e =ud%eBsc!aracter. o t!is end, t!e state&ent o" t!e Court in People v. esbreEo@) on undue pu#licit( and its e""ect on t!e ri%!t o" t!eaccused is 'ort! recallin%>

x x x 2esides, a t!orou%! revie' o" t!e records (ields no su""icient #asis to s!o' t!at pervasive pu#licit( undul( in"luenced t!e

courts =ud%&ent. 2e"ore 'e could conclude t!at appellant 'as pre=udiced #( !ostile &edia, !e &ust "irst s!o' su#stantial proo", not&erel( cast suspicions. !ere &ust #e a s!o'in% t!at adverse pu#licit( indeed in"luenced t!e courts decision, as !eld in e## v.De Leon, )+9 SCR6 8* 314 and People v. ee!an$ee, )+ SCR6 + 314.

/KGo 'arrant a "indin% o" pre=udicial pu#licit( t!ere &ust #e alle%ation and proo" t!at t!e =ud%es !ave #een undul( in"luenced, notsi&pl( t!at t!e( &i%!t #e, #( t!e #arra%e o" pu#licit(./

/Pervasive pu#licit( is not per se pre=udicial to t!e ri%!t o" an accused to "air trial. !e &ere "act t!at t!e trial o" appellant 'as %ivena da(-to-da(, %avel-to-%avel covera%e does not #( itsel" prove t!at t!e pu#licit( so per&eated t!e &ind o" t!e trial =ud%e andi&paired !is i&partialit(. or one, it is i&possi#le to seal t!e &inds o" t!e &e&#ers o" t!e #enc! "ro& pre-trial and ot!er o""-courtpu#licit( o" sensational cri&inal cases. !e state o" t!e art o" our co&&unication s(ste& #rin%s ne's as t!e( !appen strai%!t to our#rea$"ast ta#les and ri%!t to our #edroo&s. !ese ne's "or& part o" our ever(da( &enu o" t!e "acts and "ictions o" li"e. or anot!er,our idea o" a "air and i&partial =ud%e is not t!at o" a !er&it '!o is out o" touc! 'it! t!e 'orld. e !ave not installed t!e =ur( s(ste&'!ose &e&#ers are overl( protected "ro& pu#licit( lest t!e( lose t!eir i&partialit(. . . . Our =ud%es are learned in t!e la' and trainedto disre%ard o""-court evidence and on-ca&era per"or&ances o" parties to a liti%ation. !eir &ere exposure to pu#lications and

pu#licit( stunts does not per se in"ect t!eir i&partialit(.

/6t #est appellant can onl( con=ure possi#ilit( o" pre=udice on t!e part o" t!e trial =ud%e due to t!e #arra%e o" pu#licit( t!atc!aracteri5ed t!e investi%ation and trial o" t!e case. In ;artelino, et al. v. 6le=andro, et al., 'e re=ected t!is standard o" possi#ilit( o"pre=udice and adopted t!e test o" actual pre=udice as 'e ruled t!at to 'arrant a "indin% o" pre=udicial pu#licit(, t!ere &ust #ealle%ation and proo" t!at t!e =ud%es !ave #een undul( in"luenced, not si&pl( t!at t!e( &i%!t #e, #( t!e #arra%e o" pu#licit(. In t!ecase at #ar, t!e records do not s!o' t!at t!e trial =ud%e developed actual #ias a%ainst appellant as a conse<uence o" t!e extensive&edia covera%e o" t!e pre-trial and trial o" !is case. !e totalit( o" circu&stances o" t!e case does not prove t!at t!e trial =ud%eac<uired a "ixed opinion as a result o" pre=udicial pu#licit( '!ic! is incapa#le o" c!an%e even #( evidence presented durin% t!e trial.

6ppellant !as t!e #urden to prove t!is actual #ias and !e !as not disc!ar%ed t!e #urden. 3Italics in t!e ori%inal4/

6#sent a persuasive s!o'in% #( t!e appellant t!at pu#licit( pre=udicial to !is case 'as responsi#le "or !is conviction #( t!e trial =ud%e, 'e cannot accept !is #are clai& t!at !is conviction ou%!t to #e reversed on t!at %round.

&ce C+r-oo, =e &-6e +- Soce;

In !is Concurrin% Opinion, Justice 2rion <uotes Justice 2en=a&in Cardo5o o" t!e nited States Supre&e Court in t!e context o"/'!at t!e repeated/ /trut! "ro& a %enerall( trusted %overn&ent can ac!ieve/ and /t!e e""ect o" outside in"luence on =ud%in%./ !eConcurrin% Opinion uses <uotations "ro& Justice Cardo5os #oo$, he 9ature of the -udicial Process, to drive !o&e its points on!o' /t!e Co&&issions in"luence can %o #e(ond t!e level o" pri&in% and can a""ect t!e pu#lic environ&ent as 'ell as t!e t!in$in% o"#ot! t!e decision &a$ers in t!e cri&inal =ustice s(ste& and t!e pu#lic in %eneral/ and on t!e /potential pre=udicial e""ects o" trut!-tellin%./@*

!e source o" t!e <uotations "eatured in Justice 2rions Concurrin% Opinion is entitled / %dherence to Precedent. he ubconscious&lement in the -udicial Process. Conclusion,/ "ourt! in a series o" lectures delivered #( Justice Cardo5o at ale niversit( andsu#se<uentl( pu#lis!ed as a #oo$. In t!e lecture, Justice Cardo5o spo$e a#out t!e %aps le"t #( a#sence o" precedents in s(ste&s o"




















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o arrive at t!is conclusion is to place un'arranted restrictions on t!e de"initions and "unctions o" #odies #earin% t!e na&e o" /trut!co&&ission./ !ile &an( trut! co&&issions !ave indeed #een esta#lis!ed in t!e 'a$e o" a violent con"lict leadin% to a transition#et'een t'o re%i&es, t!is does not preclude t!at trut! co&&issions in so&e countries &a( #e used "or circu&stances t!at do notduplicate t!e violence o" t!e con"lict or t!e c!aracter o" t!e re%i&e transition in ot!er countries. !e needs o" various countries di""erand conse<uentl( deter&ine a %reat deal o" variation in t!e "unda&ental %oals, purposes, and c!aracteristics o" t!e #odies t!e(esta#lis!, to deal 'it! t!e a#uses o" previous ad&inistrations.9 David Croc$er puts "ort! t!e vie' t!at even nations ot!er t!an ne'de&ocracies &a( see t!e need "or 'a(s to /rec$on 'it! past 'ron%s,/ and classi"ies t!ese ot!er nations into t!ree #roadcate%ories> 314 post-con"lict societies aspirin% to transition to de&ocrac(, #ut occupied 'it! pressin% securit( issuesA 3)4 aut!oritarian

and con"lict-ridden societiesA 3*4 &ature de&ocracies t!at are rec$onin% 'it! a#uses t!eir o'n %overn&ents &a( !ave co&&itted int!e past.@ !e P!ilippine context does not, t!ere"ore, close o"" t!e avenue o" a trut! co&&ission as a per&issi#le &eans to addresspast a#uses. Li$e'ise, a de"inition t!at expects reconciliation as a re<uisite %oal "or t!e PC is an undul( narro' de"inition.

6not!er ar%u&ent raised in Justice 2rionBs Concurrin% Opinion re"ers to t!e EO 1Bs creation o" t!e PC as a /s!ortcut to t!ee&er%ence o" trut!/1 one '!ic! s!ould not #e ta$en as it /#(passKesG processes esta#lis!ed #( t!e Constitution and t!e la's./2ecause it dee&s /t!e international experiences t!at %ive rise to t!e title rut! Co&&ission/ as not appl(in% to t!e presentP!ilippine situation and clai&s t!ere is no need "or /<uic$ transitional =ustice,/ t!e Concurrin% Opinion reasons t!at /t!ere is no needto resort to... institutions and &ec!anis&s outside o" t!ose alread( in place./11 In ot!er 'ords, onl( t!e O&#uds&an and t!e

=udiciar( !ave t!e ri%!t"ul duopol( on trut!-"indin% and trut!-tellin% in %ra"t and corruption cases.

et t!e =usti"ications "or t!e use o" trut! co&&issions are not con"ined onl( to certain post-con"lict scenarios or t!e a#sence o""unctionin% =udicial s(ste&s. Even in so&e contexts '!ere t!ere is a =udicial s(ste& alread( in place, a trut! co&&ission &a( #eused #( t!e %overn&ent as a redress &ec!anis&.1) !ere are nu&erous reasons prosecution and ot!er &eans usuall( underta$en'it!in t!e =udicial s(ste& &a( not #e via#le. !ere &a( #e too &an( incidents to prosecuteA due to t!e at&osp!ere o" secrec( in'!ic! a#uses too$ place, evidence &a( #e insu""icient "or a cri&inal conviction.1* Current political policies, as 'ell as concerns

a#out ven%eance and t!e resultin% societal tensions, &a( also &a$e prosecution di""icult or i&possi#le.1+ !e ele&ent o" ti&e &a(also #e a si%ni"icant "actor.1 In addition, so&e o" t!e ai&s o" trut! co&&issions &a( #e outside t!e purvie' o" courts, as in t!ecase o" %ivin% an account o" events t!at transpired> /6 court is not supposed to %ive an account a#out t!e circu&stances o" t!e!istoric, econo&ic, and political reasons "or a cri&e, nor a#out t!e involve&ent o" di""erent %roups in t!e societ( or political in"luence"ro& t!e outside '!ic! &a( !ave encoura%ed t!e perpetrators... 0ivin% an account, providin% explanations, and o""erin%reco&&endations "or a #etter "uture are exactl( t!e purposes o" a trut! co&&ission./18 ;eans o" redress atte&pted 'it!in t!econ"ines o" t!e =udicial s(ste& &a( also not #e via#le precisel( #ecause o" ele&ents in"luencin% t!e s(ste& itsel". O""icials allied'it! t!e previous re%i&e &a( also still retain po'er, and t!rou%! various &eans !inder proceedin%s underta$en 'it!in t!e =udicials(ste&.

!is last point re%ardin% situations '!erein t!e "or&er re%i&e still possesses a certain de%ree o" in"luence over t!e s(ste& isespeciall( salient in t!e li%!t o" state capture. 6ccordin% to t!e orld 2an$, state capture &a( #e treated as a$in in essence tore%ulator( capture as it is used in econo&ics literature> state re%ulator( a%encies are considered /captured/ '!en t!e( /re%ulate#usinesses in accordance 'it! t!e private interests o" t!e re%ulated as opposed to t!e pu#lic interest "or '!ic! t!e( 'ereesta#lis!ed./ State capture, t!en, enco&passes t!e stateBs /capture/ as evinced in t!e /"or&ation o" la's, rules, and decrees #( a'ider ran%e o" state institutions, includin% t!e executive, &inistries and state a%encies, le%islature, and t!e =udiciar(./19 State

capture alters t!e /rules o" t!e %a&e/ in "avor o" t!ose '!o !ave captured t!e state. !ile state capture enco&passes a variet( o"situations, its "unda&ental c!aracteristic is t!at it is c!anneled t!rou%! illicit, in"or&al, and non-transparent &eans o" providin%private %ains to pu#lic o""icials as incentives "or t!ese ver( o""icials to influence the formation of laws and prejudice the rules to t!esecaptorsB narro' advanta%e.1@ I" pu#lic o""icials are perceived to !ave #een captured, t!e credi#ilit( o" o""icial processes suc! asrenderin% decrees, "or&in% la's, and s!apin% policies 'ill su""er. It is not di""icult to see !o' state capture &a( render traditional&eans suc! as prosecution co&pletel( ine""ective a%ainst t!ose '!o &a( !ave captured t!e state.

o t!at end, S. Sandile N%co#o 'rites>

...&an( transitional %overn&ents -o o re:ree + com:ee bre+ 4= =e :+. In so&e cases, &e&#ers o" t!e police andsecurit( "orces t!at 'ere responsi#le "or !einous acts under t!e old re%i&e rem+ e+ :oo. !eir nu&#ers andt!eir continued control o" deadl( 'eapons provide t!e& 'it! t!e capa#ilit( to under&ine t!e peace"ul transition. !eir continuedin"luence &a( t!reaten t!e ne' de&ocratic order, &a$in% prosecutions #ot! undesira#le and i&practical. 0iven t!ese realities, t!ee&er%in% de&ocrac( &a( #e co&pelled to loo$ "or alternative approac!es. 6t t!is point, a trut! co&&ission &a( #eco&e anattractive option.1 3E&p!asis supplied.4

It is true t!at in t!e P!ilippine context 'e &a( not #e spea$in% o" a past re%i&eBs continuin% control o" %uns and ar&ed &enA #utpo'er, in an( "or&, is po'er. In an( event, t!e appropriateness o" na&in% t!e PC as a /trut! co&&ission/ is not a le%al ar%u&ent"or its invalidation, as Justice 2rion !i&sel" conceded.

nla'"ul Discri&ination is not an 6r%u&ent o" t!e Po'er"ulA t!e P!eno&enon o" State Capture

nla'"ul discri&ination, as s!o'n in 6&erican cases on e<ual protection clai&s in cri&inal investi%ation and prosecution, is notin!erentl( an ar%u&ent o" t!e po'er"ul, #ut t!at o" t!e traditionall( oppressed. !is is #ecause t!e politicall( po'er"ul, as in t!e pastad&inistration, still contain all t!e advanta%es t!at suc! past "or&al political po'er #e%ot. It is t!e !ei%!t o" incon%ruit( t!at anad&inistration t!at !eld po'er "or nine (ears, success"ull( evaded all con%ressional investi%ations, and e""ectivel( invo$ed all le%al








































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de"enses "ro& investi%ation "or all t!ose nine (ears 'ill #e extended t!e sa&e i&&unit( t!at t!e "or&er presidential o""ice %ave it.!e P!ilippines 'ill #e t!e lau%!in% stoc$ o" t!e 'orld, incapa#le o" correctin% an( error, una#le to erase t!e perception #( &an(t!at it is a countr( '!ere t!e la' onl( serves t!e ends o" t!e po'er"ul.

I" evidence 'ill later turn out, con%ruent to t!e t!eor( o" so&e <uarters as inti&ated #( t!e Solicitor 0eneral durin% t!e oralar%u&ents, t!at t!e reason t!at "or&er President 6rro(o and !er closest relatives and o""icials !ave not #een prosecuted #( t!epresent O&#uds&an is #ecause t!e O&#uds&an is not independent #ut is actin% out o" lo(alt( "or !er appoint&ent to t!e position,t!en suc! evidence rein"orces t!e i&&oral political lesson t!at t!e &isuse o" t!e la' and t!e po'er o" appoint&ent can #e

purposivel( co&&itted to create a stron% s!ield o" i&&unit( "ro& accounta#ilit(. it! or 'it!out suc! evidence, !o'ever, andespeciall( #ecause t!e #elie" in t!e non-independence o" t!e O&#uds&an is openl( expressed #( people, t!e onl( 'a( "or t!isCourt to not a#et suc! a plan i" suc! a plan indeed existed on t!e part o" 6rro(o ad&inistration, is to allo' t!e people to exactaccounta#ilit( upon t!ose "ro& '!o& accounta#ilit( is due. It &ust let t!e President "ul"ill !is pro&ise to t!e people, and i" t!ePresident #elieves t!at t!e #est 'a( "or !i& is to start "ro& "act-"indin% into t!e past ad&inistration, t!en !e &ust #e allo'ed to doso 'it!out unconstitutional =udicial restraint.

!e /Least Dan%erous/ 2ranc!

!e &a=orit( too$ pains to reiterate t!e !onora#le role o" t!e Court in exercisin% t!e constitutional and a'eso&e po'er o" =udicialrevie', a&idst t!e recent strin% o" re#u$es a%ainst t!e initiatives o" t!e le%islature and elected executives de&ocraticall( electedrepresentatives o" t!e people.

In t!e se&inal #oo$ /!e Least Dan%erous 2ranc!> !e Supre&e Court at t!e 2ar o" Politics,/ 6lexander ;. 2ic$el expounded ont!e /counter-&a=oritarian di""icult(/11 o" =udicial revie' exercised #( an unelected court to declare null and void an act o" t!e

le%islature or an elected executive in t!is 'ise>

!e root di""icult( is t!at =udicial revie' is a counter-&a=oritarian "orce in our s(ste&. x x x '!en t!e Supre&e Court declaresunconstitutional a le%islative act or t!e action o" an elected executive, it t!'arts t!e 'ill o" representatives o" t!e actual people o" t!e!ere and no'A it exercises control, not in #e!al" o" t!e prevailin% &a=orit(, #ut a%ainst it. !at, 'it!out &(stic overtones, is '!atactuall( !appens. It is an alto%et!er di""erent $ettle o" "is!, and it is t!e reason t!e c!ar%e can #e &ade t!at =udicial revie' isunde&ocratic.111

2ic$elBs /counter-&a=oritarian di""icult(/ is &et #( t!e ar%u&ent t!at t!e CourtBs dut( is to up!old t!e Constitution, t!at in deter&inin%t!e /#oundaries o" t!e %reat depart&ents o" %overn&ent/ is not to assert superiorit( over t!e& #ut &erel( to assert its sole&n andsacred o#li%ation to deter&ine con"lictin% clai&s o" aut!orit( under t!e Constitution.11)

I" t!e Court is to avoid ille%iti&ac( in its actions as su%%ested #( Pro"essor 2ic$el, t!en it &ust ensure t!at its disc!ar%e o" t!e dut(to prevent a#use o" t!e PresidentBs executive po'er does not translate to stri$in% do'n as invalid even a le%iti&ate exercise t!ereo",especiall( '!en t!e exercise is in $eepin% 'it! t!e 'ill o" t!e people.11*Invalidatin% t!e PC is an unconstitutional denial o" t!e

le%iti&ate exercise o" executive po'er and a stin%in% reproac! a%ainst t!e peopleBs soverei%n ri%!t. Sadl(, t!ere is a 'ide "issure#et'een t!e pu#licBs !un%er "or %overnance =ustice t!rou%! t!e success"ul deliver( #( President 6<uino o" !is pro&ise to %et #e!indt!e stories on corruption o" t!e "or&er ad&inistration, and t!e CourtBs con"ir&ation o" an alle%ed violation o" "or&er President

6rro(oBs e<ual protection ri%!t. o e&p!asi5e, it is not even "or&er President 6rro(o '!o is o""iciall( raisin% t!is &atter #e"ore t!eCourt.

Rat!er t!an exercise =udicial restraint, t!e &a=orit( !as pus!ed t!e #oundaries o" =udicial activis& #orderin% on '!at "or&er C!ie"Justice Puno once descri#ed as an i&perial =udiciar(>

/KG!e Court s!ould strive to 'or$ out a constitutional e<uili#riu& '!ere eac! #ranc! o" %overn&ent cannot do&inate eac! ot!er, ane<uili#riu& '!ere eac! #ranc! in t!e exercise o" its distinct po'er s!ould #e le"t alone (et #ere"t o" a license to a#use. It is our!ands t!at 'ill co##le t!e co&ponents o" t!is delicate constitutional e<uili#riu&. In t!e disc!ar%e o" t!is dut(, Justice ran$"urterre<uires =ud%es to ex!i#it t!at Hrare disinterestedness o" &ind and purpose, a "reedo& "ro& intellectual and social paroc!ialis&.B !ecall "or t!at <ualit( o" /rare disinterestedness/ s!ould counsel us to resist t!e te&ptation o" undul( in"latin% =udicial po'er andde"latin% t!e executive and le%islative po'ers. T=e 19@7 Coo e<:+-e- =e :+r+meer o E-c+ :o4er, b =+ b;

o me+ + Ec+o or =e err+ =o6= =+ =e Coo cre+e- + m:er+ E-c+r;. 6n i&perial =udiciar(co&posed o" t!e unelected, '!ose sole constituenc( is t!e #lind"olded lad( 'it!out t!e ri%!t to vote, is counter-&a=oritarian, !ence,in!erentl( ini&ical to t!e central ideal o" de&ocrac(. e cannot pretend to #e an i&perial =udiciar( "or in a %overn&ent '!osecornerstone rests on t!e doctrine o" separation o" po'ers, 'e cannot #e t!e repositor( o" all re&edies./11+ 3E&p!asis supplied4

!en "or%otten, !istor( does !ave a tendenc( to repeat itsel".11 nless an o""icial and co&pre!ensive narrative o" "indin%s o" "act onlar%e-scale corruption t!at reportedl( occurred durin% t!e previous ad&inistration is &ade pu#lic, t!e countr( &a( "ind t!e sa&ealle%ed patterns o" corruption repeatin% t!e&selves. orse, pu#lic o""icials su#=ect o" t!e investi%ation and '!o &a( actuall( #e%uilt( 'it! continued possession or access to po'er &a( spin t!ese events and cause a revision o" our !istor( to &a$e t!osealle%ations o" 'ron%doin% appear not!in% &ore t!an unsu#stantiated ru&ors '!ispered in secret and perpetuated #( #itteropponents. !e PC is a step to'ards national !ealin% over a sordid past. !e Court &ust allo' t!e nation to &ove "or'ard and t!epeopleBs "ait! in a =ust and accounta#le %overn&ent to #e restored.


















8/13/2019 G.R. No. 192935 December 7, 2010


#ARIA LOURD!S . A. S!R!NO 6ssociate Justice

$oooe

1 Decision, at p. +*.

) !is is discussed in t!e part o" t!is Opinion on /!e ;a=orit( DecisionBs urn-6round./

* Decision at p. *.

+ Id.

Id. at p. )+.

8 Id. at p. )*.

9 Id. at p. ).

@ Decision at p. *.

Id. at *.

1 .S. 1*9 31@*4.

11 Decision at p. *.

1) Decision at p. )+.

1* !e &a=orit( Decision clari"ies t!at investi%ation o" deceased presidents, cases '!ic! !ave alread( prescri#ed andsi&ultaneous investi%ations o" previous ad&inistration are not expected o" t!e PC. 3Decision at p. *94

1+ Decision at p. *9.

1 Decision at p. +*.

18 Id. at pp. *9-*@.

19 I su#&it t!at t!e &a=orit( Decision &ust !ave intended to re"er to all o""icials o" past presidents, and not onl( to t!ePresidents t!e&selves.

1@ nless t!e Court is i&pliedl( sa(in% t!at t!e reported cri&es t!at are t!e earliest in point o" ti&e are t!e ones t!at &ust#e prioriti5ed, i.e., reported cri&es co&&itted durin% t!e ad&inistrations o" Presidents Cora5on 6<uino and idel Ra&os.2ut to i&pose t!is standard is t!e !ei%!t o" le%al unreasona#leness and t!e 'orst "or& o" =udicial overreac!.

1

0.R. No. L-8*1, ) Dece&#er 1@8, 1+8 SCR6 ++8.

) Decision at p. *8.

)1 SECION 19. Special Provision Concernin% ;andate. I" and '!en in t!e =ud%&ent o" t!e President t!ere is a need toexpand t!e &andate o" t!e Co&&ission as de"ined in Section 1 !ereo" to include t!e investi%ation o" cases and instanceso" %ra"t and corruption durin% t!e prior ad&inistrations, suc! &andate &a( #e so extended accordin%l( #( 'a( o" asupple&ental Executive Order.

)) 0.R. No. 1@8@, )) e#ruar( )1.

http://www.lawphil.net/judjuris/juri2010/dec2010/gr_192935_2010.html#rnt1s





















































8/13/2019 G.R. No. 192935 December 7, 2010


)* Nixon v. 6d&inistrator o" 0eneral Services, +** S +) cited in 6&. Jur. )d, 7ol. 183#4, p. *91A :unter v. lo'ers, +*So. )d +* cited in 6&. Jur. )d, 7ol. 183#4, p. *9A Cle&ents v. as!in%, +9 .S. 9.

)+ Decision at p. *8.

) Despite t!e atte&pt o" t!e &a=orit( Decision to &a$e it appear t!at it is not unreasona#le in re<uirin% an all-co&pre!ensive covera%e '!en it sa(s t!at it does not re<uire t!e i&possi#le, t!e "act t!at it $eeps on insistin% t!at all

past ad&inistrations &ust #e included in t!e covera%e o" EO 1 %ive #asis "or t!e opinion t!at t!e Decision indeed re<uirescovera%e spannin% at least 8 decades, and even per!aps, a centur(. See Dissent o" J. Carpio.

)8 Decision, at pp. )-+.

)9 Decision at p. *, citin% ;cDonald v. 2oard o" Election Co&Brs o" C!ica%o, *+ S @) cited in 6;. Jur )d, note .

)@ 0.R. No. L-**@, )@ ;a( 1), 1 P!il. *91.

) 0.R. No. L-**@, )@ ;a( 1), 1 P!il. *91.

* 0.R. No. 18*@*, ) 6u%ust )@, 8) SCR6 11.

*1 /6ll in all, t!e classi"ication "ree5e provision addressed Con%ressBs ad&inistrative concerns in t!e si&pli"ication o" taxad&inistration o" sin products, eli&ination o" potential areas "or a#use and corruption in tax collection, #uo(ant and sta#lerevenue %eneration, and ease o" pro=ection o" revenues. Conse<uentl(, t!ere can #e no denial o" t!e e<ual protection o"t!e la's since t!e rational-#asis test is a&pl( satis"ied./ 3)ritish %merican obacco v. Camacho, id.4

*) ;atian%ai Sirlea", 'egional %pproach to ransitional -ustice &+amining the pecial Court for ierra (eone and theruth F 'econciliation Commission for (iberia, )1 la. J. IntBl L. ), )1* 3)4, citing E. 0(i&a!-2oadi, ExecutiveDirector, CDD-0!ana, Paper Presentation at t!e 2ritis! :all Council> Reconciliation> Co&parative Perspectives, 9 3June1*, )4.

** Mristin 2o!l, )rea*ing the 'ules of ransitional -ustice, )+ is. IntBl L. J. 9, +9* 3)84.

*+ 0.R. L-))+8, 1) Septe&#er 19+, SCR6 +.

* 0.R. L-))+8, 1) Septe&#er 19+, SCR6 +.

*8 0.R. L-))+8, 1) Septe&#er 19+, SCR6 +.

*9 nited States v. :a%%ert(, )@ .Supp. 1)8@, 1)1 3D.Colo.1@14.

*@ nited States v. 6r&stron%, 19 S +8, +8+, 118 S.Ct. 1+@, 1*+ L.Ed.)d 8@9 3184.

* nited States v. 0ood'in, +9 .S. *8@, *@, n. 11 31@)4.

+ ;cLau%!lin v. State o" la., @ S.Ct. )@* 318+4.

+1 6pplication o" inn, *8 P.)D 8@ 3184.

+)

nited States v. a(te, +9 S @, 8@ 314.

+* 2ell v. State, *8 So.)d *) 3194.

++ nited States v. 6r&stron%, supra, 19 .S. +8, +8 3184.

+ nited States v. ur&an, *1 .** 1*+, 1*@ 31t! Cir. 1+4, <uotin% nited States v. Sala5ar, 9) .)d 1+@), 1+@931t! Cir. 1@*4.

+8 nited States v. Sala5ar, 9) .)d 1+@), 1+@9 31t! Cir. 1@*4.

















































8/13/2019 G.R. No. 192935 December 7, 2010


+9 nited States v. :unter, 1* .Supp.)D @8, 1 June 1@.

+@ 0.R. No. 1)1999, )+ Januar( )1, * SCR6 18*.

+ Constitution, 6rticle II, Section )9.

6n% Ladlad L02 Part( v. CO;ELEC, 0.R. No. 1@), @ 6pril )1.

1 6riel ;e(erstein, ransitional Justice and Post Con"lict IsraelFPalestine> 6ssessin% t!e 6pplica#ilit( o" t!e rut!Co&&ission Paradi%&, *@ Case . Res. J. IntBl. L. )@1, ** 3)8-)94.

) 6%rava Co&&ission, Presidential Decree No. 1@@8 31+ Octo#er 1@*4.

* Davide Co&&ission, 6d&inistrative Order No. 1+8 38 Dece&#er 1@4 and Repu#lic 6ct No. 8@*) 3 Januar( 14.

+ eliciano Co&&ission, 6d&inistrative Order No. 9@ 3* Jul( )*4.

;elo Co&&ission, 6d&inistrative Order No. 19* 3)* ;arc! )94.

8 eQarosa Co&&ission, 6d&inistrative Order No. )9 3 Dece&#er )4.

9 Re(es v. Pearl#an$ Securit(, Inc., 0.R. No. 191+*, * Jul( )@, 8 SCR6 1@.

@ Executive Order No. 1, Section ) 3#4.

/!e prosecution o" one %uilt( person '!ile ot!ers e<uall( %uilt( are not prosecuted, !o'ever, is not, #( itsel", a denialo" t!e e<ual protection o" t!e la's./ 3People v. Du&lao, 0.R. No. 18@1@, ) ;arc! ), @ SCR6 +4.

8 0.R. No. 1+)*, )1 6pril ), +8 SCR6 ++.

81 0.R. Nos. 1+@)1*-19, 1* ;arc! ), @1 SCR6 +).

8) Rose eston, acin% t!e Past, acin% t!e uture> 6ppl(in% t!e rut! Co&&ission ;odel to t!e :istoric reat&ent o"Native 6&ericans in t!e nited States, 1@ 6ri5. J. IntBl U Co&p. L. 119, 11@-11 3)14.

8* Jocel(n E. 0et%en, ntold rut!s> !e Exclusion o" En"orced Sterili5ations ro& t!e Peruvian rut! Co&&issionBs inalReport, ) 2.C. !ird orld L.J. 1, *+ 3)4.

8+ Ja&es !uo 0at!ii, De"inin% !e Relations!ip o" :u&an Ri%!ts to Corruption, *1 . Pa. J. Intl L. 1), 19 3)4.

8 Concurrin% Opinion o" Justice 2rion, p. 18

88 Id.

89 Id. at p. ))

8@ Meit! 6o$i, !e Sc!olars!ip o" Reconstruction and t!e Politics o" 2ac$las!, @1 Io'a L. Rev p. 1+8@, Jul( 18.

8 Id.

9 Justice 2rionBs Concurrin% Opinion, pp. 1*, 19-1@

91 Id. at p. 1

9) Id. at p. )9





















































8/13/2019 G.R. No. 192935 December 7, 2010


9* 2rion, supra at p. )9.

9+ Step!en Lands&an, 6lternative Responses to Serious :u&an Ri%!ts 6#uses> O" Prosecution and rut! Co&&issions,La' U Conte&p. Pro#s ., 7ol. , No. +, p. @@ 3194.

9 S!aron M. :o& and Eric M. a&a&oto, Collective ;e&or(, :istor(, and Social Justice, +9 CL6 La' Revie' 19+93)4, p. 198+.

98 :o& and a&a&oto, supra at p. 19.

99 0.R. No. 1@)+@, * Dece&#er ), 88 SCR6 @.

9@ !e ri%!t o" t!e people to in"or&ation on &atters o" pu#lic concern s!all #e reco%ni5ed. 6ccess to o""icial records, and todocu&ents and papers pertainin% to o""icial acts, transactions, or decisions, as 'ell as to %overn&ent researc! data usedas #asis "or polic( develop&ent, s!all #e a""orded t!e citi5en, su#=ect to suc! li&itations as &a( #e provided #( la'.3Constitution, 6rticle III, Section 94

9 Su#=ect to reasona#le conditions prescri#ed #( la', t!e State adopts and i&ple&ents a polic( o" "ull pu#lic disclosure o"all its transactions involvin% pu#lic interest. 3Constitution, 6rticle II, Section )@4

@ /!e polic( o" "ull pu#lic disclosure enunciated in a#ove-<uoted Section )@ co&ple&ents t!e ri%!t o" access to

in"or&ation on &atters o" pu#lic concern "ound in t!e 2ill o" Ri%!ts. !e ri%!t to in"or&ation %uarantees t!e ri%!t o" t!epeople to de&and in"or&ation, '!ile Section )@ reco%ni5es t!e dut( o" o""icialdo& to %ive in"or&ation even i" no#od(de&ands.

/!e polic( o" pu#lic disclosure esta#lis!es a concrete et!ical principle "or t!e conduct o" pu#lic a""airs in a%enuinel( open de&ocrac(, 'it! t!e peoples ri%!t to $no' as t!e centerpiece. It is a &andate o" t!e State to #eaccounta#le #( "ollo'in% suc! polic(. !ese provisions are vital to t!e exercise o" t!e "reedo& o" expressionand essential to !old pu#lic o""icials at all ti&es accounta#le to t!e people./ 3Province o" Nort! Cota#ato v. 0RPPeace Panel on 6ncestral Do&ain, 0.R. Nos. 1@*1, 1@*9), 1@*@*, 1@*1 U 1@*8), 1+ Octo#er )@,8@ SCR6 +)A e&p!asis supplied4

@1 In ever( case, a =ud%e s!all endeavor dili%entl( to ascertain t!e "acts and t!e applica#le la' uns'a(ed #( partisaninterests, pu#lic opinion or "ear o" criticis&. 32arillo v. Lantion, 0.R. No. 1119 U 6.;. No. ;J-1-19), 1 ;arc!)14.

@)

People v. ebreEo, 0.R. No. 1)198+, Septe&#er 1, *1+ SCR6 @9.

@* Justice 2rionBs Concurrin% Opinion, at pp. 1@-1.

@+ 2en=a&in N. Cardo5o, !e Nature o" t!e Judicial Process 3Ne' :aven> ale niversit( Press, 1 31)14.

@ Cardo5o, supra at pp. 188-189.

@8 Roosevelt as cited in Cardo5o, id., at p. 191.

@9 Id., at pp. 19)-19*.

@@ Cardo5o, supra at p. 19+

@ Concurrin% Opinion o" Justice 2rion, p. 1@.

Cardo5o, supra at p. 19+.

1 Id. at p. 198.

) Id. at p. 199.

* Cardo5o, supra at p. 19@.











































8/13/2019 G.R. No. 192935 December 7, 2010


+ Id. at p. 19.

Justice 2rionBs Concurrin% Opinion, pp. -8.

8 Id. at p. 8.

9 Juan E. ;end^5, 6ccounta#ilit( "or Past 6#uses, 1 :u&. Rts. ), )-)@) 3194A C!arles O. Lerc!e III, rut!Co&&issions and National Reconciliation> So&e Re"lections on !eor( andPractice!ttp>FF'''.%&u.eduFacade&icFpcsFLERC:E91PCS.!t&lP 3accessed 9 Nove&#er )14.

@ David Croc$er, Rec$onin% 'it! Past ron%s> 6 Nor&ative ra&e'or$, 1* Et!ics U International 6""airs, +*-8+ 314.

2rion, supra at p. 8.

1 Id. at p. )

11 Id. at p. **

1) 6n%eli$a Sc!lunc$, rut! and Reconciliation Co&&issions, + ILS6 J. IntBl U Co&p. L, +1, ).

1*

S. Sandile N%co#o, rut!, Justice, and 6&nest( in Sout! 6"rica> Sins "ro& t!e Past and Lessons "or t!e uture, @ IS0entiu&, 8-9.

1+ Lands&an, supra note 9).

1 Neil J. Mrit5, Co&in% to er&s 'it! 6trocities> 6 Revie' o" 6ccounta#ilit( ;ec!anis&s "or ;ass 7iolations o" :u&anRi%!ts, La' U Conte&p. Pro#s. +, 1)9-1).

18 Sc!lunc$, supra at pp. +1-+).

19 orld 2an$, 6nticorruption in ransition> 6 Contri#ution to t!e Polic( De#ate 3)4!ttp>FFin"o.'orld#an$.or%FetoolsFdocsFli#rar(F198Fcontri#ution.pd" 3accessed on 9 Nove&#er )14.

1@ orld 2an$, supra at pp. 1-).

1 N%co#o, supra note 1* at p. 9.

11 /!e <uestion at t!e !eart o" t!e ano&al( is '!( a de&ocrac( a political s(ste& #ased on representation andaccounta#ilit( s!ould entrust t!e "inal, or near "inal, &a$in% o" suc! !i%!l( si%ni"icant decisions to =ud%es unelected,independent and insulated "ro& t!e direct i&pact o" pu#lic opinion./ 3Step!en 0. 2re(er, Judicial Revie'> 6 Practisin%Jud%eBs Perspective, 1 Ox"ord Journal o" Le%al Studies 1* K1G, cited in 7icente 7. ;endo5a, Judicial Revie' o"Constitutional uestions, )81 K)+G

111 6lexander ;. 2ic$el, !e Least Dan%erous 2ranc!> !e Supre&e Court at t!e 2ar o" Politics, 18-19 318)4.

11) Decision, at p. +).

11* 6$#a(an Citi5ens 6ction Part( 36M266N4 v. 6<uino, 0.R. No. 1918, 18 Jul( )@, @ SCR6 +8@.

11+ Puno, Concurrin% and Dissentin% Opinion in rancisco v. :ouse o" Representatives, 0.R. No. 18)81, 1 Nove&#er)*, +1 SCR6 ++, )11.

11 0et%en, supra note 8*, at p. **.






























































8/13/2019 G.R. No. 192935 December 7, 2010


CONCURRING AND DISS!NTING OINION

NACURA, J.:

2e"ore us are t'o 3)4 consolidated petitions>

1. 0.R. No. 1)* is a petition "or pro!i#ition "iled #( petitioner Louis 2irao%o 32irao%o4, in !is capacit( as a citi5en andtaxpa(er, assailin% Executive Order 3E.O.4 No. 1, entitled /Creatin% t!e P!ilippine rut! Co&&ission o" )1/ "or violatin%Section 1, 6rticle 7I o" t!e 1@9 ConstitutionA and

). 0.R. No. 1**8 is a petition "or certiorari and pro!i#ition "iled #( petitioners Edcel C. La%&an, Rodol"o 2. 6l#ano, Jr.,Si&eon 6. Datu&anon%, and Orlando 2. ua, Sr., in t!eir capacit( as &e&#ers o" t!e :ouse o" Representatives, si&ilarl(#e'ailin% t!e unconstitutionalit( o" E.O. No. 1.

irst, t!e all too "a&iliar "acts leadin% to t!is cause cele#re.

On ;a( 1, )1, 2eni%no Si&eon C. 6<uino III 'as elected President o" t!e P!ilippines. O"t repeated durin% !is ca&pai%n "or t!epresidenc( 'as t!e unco&pro&isin% slo%an, /Mun% 'alan% corrupt, 'alan% &a!irap./

2arel( a &ont! a"ter !is assu&ption to o""ice, and intended as "ul"ill&ent o" !is ca&pai%n pro&ise, President 6<uino, on Jul( *,)1, issued Executive Order No. 1, to 'it>

E?ECI7E ORDER NO. 1

CRE6IN0 :E P:ILIPPINE R: CO;;ISSION O )1

:ERE6S, 6rticle ?I, Section 1 o" t!e 1@9 Constitution o" t!e P!ilippines sole&nl( ens!rines t!e principle t!at a pu#lic o""ice is apu#lic trust and &andates t!at pu#lic o""icers and e&plo(ees, '!o are servants o" t!e people, &ust at all ti&es #e accounta#le tot!e latter, serve t!e& 'it! ut&ost responsi#ilit(, inte%rit(, lo(alt( and e""icienc(, act 'it! patriotis& and =ustice, and lead &odestlivesA

:ERE6S, corruption is a&on% t!e &ost despica#le acts o" de"iance o" t!is principle and notorious violation o" t!is &andateA

:ERE6S, corruption is an evil and scour%e '!ic! seriousl( a""ects t!e political, econo&ic, and social li"e o" a nationA in a ver(special 'a( it in"licts untold &is"ortune and &iser( on t!e poor, t!e &ar%inali5ed and underprivile%ed sector o" societ(A

:ERE6S, corruption in t!e P!ilippines !as reac!ed ver( alar&in% levels, and under&ined t!e peopleBs trust and con"idence in t!e0overn&ent and its institutionsA

:ERE6S, t!ere is an ur%ent call "or t!e deter&ination o" t!e trut! re%ardin% certain reports o" lar%e scale %ra"t and corruption int!e %overn&ent and to put a closure to t!e& #( t!e "ilin% o" t!e appropriate cases a%ainst t!ose involved, i" 'arranted, and to deterot!ers "ro& co&&ittin% t!e evil, restore t!e peopleBs "ait! and con"idence in t!e 0overn&ent and in t!eir pu#lic servantsA

:ERE6S, t!e PresidentBs #attlecr( durin% !is ca&pai%n "or t!e Presidenc( in t!e last elections /$un% 'alan% corrupt, 'alan%&a!irap/ expresses a sole&n pled%e t!at i" elected, !e 'ould end corruption and t!e evil it #reedsA

:ERE6S, t!ere is a need "or a separate #od( dedicated solel( to investi%atin% and "indin% out t!e trut! concernin% t!e reportedcases o" %ra"t and corruption durin% t!e previous ad&inistration, and '!ic! 'ill reco&&end t!e prosecution o" t!e o""enders andsecure =ustice "or allA

:ERE6S, 2oo$ III, C!apter 1, Section *1 o" Executive Order No. )), ot!er'ise $no'n as t!e Revised 6d&inistrative Code o"t!e P!ilippines, %ives t!e President t!e continuin% aut!orit( to reor%ani5e t!e O""ice o" t!e President.

NO, :EREORE, I, 2ENI0NO SI;EON 6INO III, President o" t!e Repu#lic o" t!e P!ilippines, #( virtue o" t!e po'ers vestedin &e #( la', do !ere#( order>

SECION 1. Creation o" a Co&&ission. !ere is !ere#( created t!e P:ILIPPINE R: CO;;ISSION, !ereina"ter re"erred toas t!e /CO;;ISSION,/ '!ic! s!all pri&aril( see$ and "ind t!e trut! on, and to'ard t!is end, investi%ate reports o" %ra"t andcorruption o" suc! scale and &a%nitude t!at s!oc$ and o""end t!e &oral and et!ical sensi#ilities o" t!e people, co&&itted #( t!epu#lic o""icers and e&plo(ees, t!eir co-principals, acco&plices and accessories "ro& t!e private sector, i" an(, durin% t!e previous

8/13/2019 G.R. No. 192935 December 7, 2010


ad&inistrationA and t!erea"ter reco&&end t!e appropriate action or &easure to #e ta$en t!ereon to ensure t!at t!e "ull &easure o" =ustice s!all #e served 'it!out "ear or "avor.


SECION ). Po'ers and unctions. !e Co&&ission, '!ic! s!all !ave all t!e po'ers o" an investi%ative #od( under Section *9,C!apter , 2oo$ I o" t!e 6d&inistrative Code o" 1@9, is pri&aril( tas$ed to conduct a t!orou%! "act-"indin% investi%ation o" reported

cases o" %ra"t and corruption re"erred to in Section 1, involvin% t!ird level pu#lic o""icers and !i%!er, t!eir co-principals, acco&plicesand accessories "ro& t!e private sector, i" an(, durin% t!e previous ad&inistration and t!erea"ter su#&it its "indin% andreco&&endation to t!e President, Con%ress and t!e O&#uds&an. In particular, it s!all>

a4 Identi"( and deter&ine t!e reported cases o" suc! %ra"t and corruption '!ic! it 'ill investi%ateA

#4 Collect, receive, revie' and evaluate evidence related to or re%ardin% t!e cases o" lar%e scale corruption'!ic! it !as c!osen to investi%ate, and to t!is end re<uire an( a%enc(, o""icial or e&plo(ee o" t!e Executive2ranc!, includin% %overn&ent-o'ned or controlled corporation, to produce docu&ents, #oo$s, records andot!er papersA

c4 pon proper re<uest and representation, o#tain in"or&ation and docu&ents "ro& t!e Senate and t!e :ouseo" Representatives records o" investi%ations conducted #( co&&ittees t!ereo" relatin% to &atters or su#=ects#ein% investi%ated #( t!e Co&&issionA

d4 pon proper re<uest and representation, o#tain in"or&ation "ro& t!e courts, includin% t!e Sandi%an#a(anand t!e O""ice o" t!e Court 6d&inistrator, in"or&ation or docu&ents in respect to corruption cases "iled 'it! t!eSandi%an#a(an or t!e re%ular courts, as t!e case &a( #eA

e4 Invite or su#poena 'itnesses and ta$e t!eir testi&onies and "or t!at purpose, ad&inister oat!s or a""ir&ationsas t!e case &a( #eA

"4 Reco&&end, in cases '!ere t!ere is a need to utili5e an( person as a state 'itness to ensure t!at t!e endso" =ustice #e "ull( served, t!at suc! person '!o <uali"ies as a state 'itness under t!e Revised Rules o" Court o"t!e P!ilippines #e ad&itted "or t!at purposeA

%4 urn over "ro& ti&e to ti&e, "or expeditious prosecution, to t!e appropriate prosecutorial aut!orities, #(&eans o" a special or interi& report and reco&&endation, all evidence on corruption o" pu#lic o""icers ande&plo(ees and t!eir private sector co-principals, acco&plices or accessories, i" an(, '!en in t!e course o" itsinvesti%ation t!e Co&&ission "inds t!at t!ere is reasona#le %round to #elieve t!at t!e( are lia#le "or %ra"t and

corruption under pertinent applica#le la'sA

!4 Call upon an( %overn&ent investi%ative or prosecutorial a%enc( suc! as t!e Depart&ent o" Justice or an( o"t!e a%encies under it, and t!e Presidential 6nti-0ra"t Co&&ission, "or suc! assistance and cooperation as it&a( re<uire in t!e disc!ar%e o" its "unctions and dutiesA

i4 En%a%e or contract t!e services o" resource person, pro"essional and ot!er personnel deter&ined #( it asnecessar( to carr( out its &andateA

=4 Pro&ul%ate its rules and re%ulations or rules o" procedure it dee&s necessar( to e""ectivel( and e""icientl(carr( out t!e o#=ectives o" t!is Executive Order and to ensure t!e orderl( conduct o" its investi%ations,proceedin%s and !earin%s, includin% t!e presentation o" evidenceA

$4 Exercise suc! ot!er acts incident to or are appropriate and necessar( in connection 'it! t!e o#=ectives and

purposes o" t!is Order.

SECION *. Sta""in% Re<uire&ents. !e Co&&ission s!all #e assisted #( suc! assistants and personnel as &a( #e necessar( toena#le it to per"or& its "unctions, and s!all "or&ulate and esta#lis! its or%ani5ation structure and sta""in% pattern co&posed o" suc!ad&inistrative and tec!nical personnel as it &a( dee& necessar( to e""icientl( and e""ectivel( carr( out its "unctions and dutiesprescri#ed !erein, su#=ect to t!e approval o" t!e Depart&ent o" 2ud%et and ;ana%e&ent. !e o""icials o" t!e Co&&ission s!all inparticular include, #ut not li&ited to, t!e "ollo'in%>

a. 0eneral Counsel

#. Deput( 0eneral Counsel

8/13/2019 G.R. No. 192935 December 7, 2010


c. Special Counsel

d. Cler$ o" t!e Co&&ission

SECION +. Detail o" E&plo(ees. !e President, upon reco&&endation o" t!e Co&&ission, s!all detail suc! pu#lic o""icers orpersonnel "ro& ot!er depart&ent or a%encies '!ic! &a( #e re<uired #( t!e Co&&ission. !e detailed o""icers and personnel &a(#e paid !onoraria andFor allo'ances as &a( #e aut!ori5ed #( la', su#=ect to pertinent accountin% and auditin% rules and

procedures.

SECION . En%a%e&ent o" Experts. !e rut! Co&&ission s!all !ave t!e po'er to en%a%e t!e services o" experts asconsultants or advisers as it &a( dee& necessar( to acco&plis! its &ission.

SECION 8. Conduct o" Proceedin%s. !e proceedin%s o" t!e Co&&ission s!all #e in accordance 'it! t!e rules pro&ul%ated #(t!e Co&&ission. :earin%s or proceedin%s o" t!e Co&&ission s!all #e open to t!e pu#lic. :o'ever, t!e Co&&ission, &otu propio,or upon t!e re<uest o" t!e person testi"(in%, !old an executive or closed-door !earin% '!ere &atters o" national securit( or pu#licsa"et( are involved or '!en t!e personal sa"et( o" t!e 'itness 'arrants t!e !oldin% o" suc! executive or closed-door !earin%. !eCo&&ission s!all provide t!e rules "or suc! !earin%.

SECION 9. Ri%!t to Counsel o" itnessesFResources Persons. 6n( person called to testi"( #e"ore t!e Co&&ission s!all !avet!e ri%!t to counsel at an( sta%e o" t!e proceedin%s.

SECION @. Protection o" itnessesFResource Persons. !e Co&&ission s!all al'a(s see$ to assure t!e sa"et( o" t!e persons

called to testi"( and, i" necessar( &a$e arran%e&ents to secure t!e assistance and cooperation o" t!e P!ilippine National Police andot!er appropriate %overn&ent a%encies.

SECION . Re"usal to O#e( Su#poena, a$e Oat! or 0ive esti&on(. 6n( %overn&ent o""icial or personnel '!o, 'it!out la'"ulexcuse, "ails to appear upon su#poena issued #( t!e Co&&ission or '!o, appearin% #e"ore t!e Co&&ission re"uses to ta$e oat! ora""ir&ation, %ive testi&on( or produce docu&ents "or inspection, '!en re<uired, s!all #e su#=ect to ad&inistrative disciplinar( action.

6n( private person '!o does t!e sa&e &a( #e dealt 'it! in accordance 'it! la'.

SECION 1. Dut( to Extend 6ssistance to t!e Co&&ission. !e depart&ents, #ureaus, o""ices, a%encies or instru&entalities o"t!e 0overn&ent, includin% %overn&ent-o'ned and controlled corporations, are !ere#( directed to extend suc! assistance andcooperation as t!e Co&&ission &a( need in t!e exercise o" its po'ers, execution o" its "unctions and disc!ar%e o" its duties andresponsi#ilities 'it! t!e end in vies o" acco&plis!in% its &andate. Re"usal to extend suc! assistance or cooperation "or no valid or

=usti"ia#le reason or ade<uate cause s!all constitute a %round "or disciplinar( action a%ainst t!e re"usin% o""icial or personnel.

SECION 11. 2ud%et "or t!e Co&&ission. !e O""ice o" t!e President s!all provide t!e necessar( "unds "or t!e Co&&ission to

ensure t!at it can exercise its po'ers, execute its "unctions, and per"or& its duties and responsi#ilities as e""ectivel(, e""icientl(, andexpeditiousl( as possi#le.

SECION 1). O""ice. !e Co&&ission &a( avail itsel" o" suc! o""ice space '!ic! &a( #e availa#le in %overn&ent #uildin%saccessi#le to t!e pu#lic space a"ter coordination 'it! t!e depart&ent or a%encies in control o" said #uildin% or, i" not availa#le, leasesuc! space as it &a( re<uire "ro& private o'ners.

SECION 1*. urnitureFE<uip&ent. !e Co&&ission s!all also #e entitled to use suc! e<uip&ent or "urniture "ro& t!e O""ice o"t!e President '!ic! are availa#le. In t!e a#sence t!ereo", it &a( re<uest "or t!e purc!ase o" suc! "urniture or e<uip&ent #( t!eO""ice o" t!e President.

SECION. 1+. er& o" t!e Co&&ission. !e Co&&ission s!all acco&plis! its &ission on or #e"ore Dece&#er *1, )1).

SECION 1. Pu#lication o" inal Report. On or #e"ore Dece&#er *1, )1), t!e Co&&ission s!all render a co&pre!ensive "inal

report '!ic! s!all #e pu#lis!ed upon t!e directive o" t!e president. Prior t!ereto, also upon directive o" t!e President, t!eCo&&ission &a( pu#lis! suc! special interi& reports it &a( issue "ro& ti&e to ti&e.

SECION 18. rans"er o" Records and acilities o" t!e Co&&ission. pon t!e co&pletion o" its 'or$, t!e records o" t!eCo&&ission as 'ell as its e<uip&ent, "urniture and ot!er properties it &a( !ave ac<uired s!all #e returned to t!e O""ice o" t!ePresident.

SECION 19. Special Provision Concernin% ;andate. I" and '!en in t!e =ud%&ent o" t!e President t!ere is a need to expand t!e&andate o" t!e Co&&ission as de"ined in Section 1 !ereo" to include t!e investi%ation o" cases and instances o" %ra"t andcorruption durin% t!e prior ad&inistrations, suc! &andate &a( #e so extended accordin%l( #( 'a( o" a supple&ental ExecutiveOrder.

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SECION 1@. Separa#ilit( Clause. I" an( provision o" t!is Order is declared unconstitutional, t!e sa&e s!all not a""ect t!e validit(and e""ectivit( o" t!e ot!er provisions !ereo".

Section 1. E""ectivit(. !is Executive Order s!all ta$e e""ect i&&ediatel(.

DONE in t!e Cit( o" ;anila, P!ilippines, t!is *t! da( o" Jul( )1.

3S0D.4 2ENI0NO S. 6INO III

2( t!e President>

3S0D.4 P6IO N. OC:O6, JR.Executive Secretar(

it!out dela(, petitioners 2irao%o and Con%ress&en La%&an, 6l#ano, Datu&anon%, and ua "iled t!eir respective petitionsdecr(in% t!e constitutionalit( o" t!e rut! Co&&ission, pri&aril(, "or #ein% a usurpation #( t!e President o" t!e le%islative po'er tocreate a pu#lic o""ice.

In co&pliance 'it! our Resolution, t!e O""ice o" t!e Solicitor 0eneral 3OS04 "iled its Consolidated Co&&ent to t!e petitions. ;otuproprio, t!e Court !eard oral ar%u&ents on Septe&#er 9 and )@, )1, '!ere 'e re<uired t!e parties, t!erea"ter, to "ile t!eirrespective &e&oranda.

In !is ;e&orandu&, petitioner 2irao%o, in t!e &ain, contends t!at E.O. No. 1 violates Section 1, 6rticle 7I o" t!e 1@9 Constitution#ecause it creates a pu#lic o""ice '!ic! onl( Con%ress is e&po'ered to do. 6dditionall(, /considerin% certain ad&issions &ade #(t!e OS0 durin% t!e oral ar%u&ents,/ t!e petitioner <uestions t!e alle%ed intrusion o" E.O. No. 1 into t!e independence o" t!e O""iceo" t!e O&#uds&an &andated in, and protected under, Section , 6rticle ?I o" t!e 1@9 Constitution.

:oldin% parallel vie's on t!e invalidit( o" t!e E.O., petitioner ;e&#ers o" t!e :ouse o" Representatives raise t!e "ollo'in% issues>

I.

E?ECI7E ORDER NO. 1 CRE6IN0 :E P:ILIPPINE R: CO;;ISSION O )1 7IOL6ES :E PRINCIPLE OSEP6R6ION O POERS 2 SRPIN0 :E POERS O :E CON0RESS 314 O CRE6E P2LIC OICES,

60ENCIES 6ND CO;;ISSIONSA 6ND 3)4 O 6PPROPRI6E P2LIC NDS.

II.

E?ECI7E ORDER NO. 1 7IOL6ES :E E6L PROECION CL6SE O :E 1@9 CONSIION 2EC6SE ILI;IS :E JRISDICION O :E P:ILIPPINE R: CO;;ISSION O OICI6LS 6ND E;PLOEES O :E/PRE7IOS 6D;INISR6ION/ 3:E 6D;INISR6ION O OR;ER PRESIDEN 0LORI6 ;6C6P606L-6RROO4.

III.

E?ECI7E ORDER NO. 1 SPPL6NS :E CONSIION6LL ;6ND6ED POERS O :E OICE O :EO;2DS;6N 6S PRO7IDED IN :E 1@9 CONSIION 6ND SPPLE;ENED 2 REP2LIC 6C NO. 899 OR :E/O;2DS;6N 6C O 1@./

Expectedl(, in its ;e&orandu&, t!e OS0 traverses t!e contention o" petitioners and up!olds t!e constitutionalit( o" E.O. No. 1 ont!e stren%t! o" t!e "ollo'in% ar%u&ents>

I.

PEIIONERS :67E NO 6ND ILL NO SER DIREC PERSON6L INJR I: :E ISS6NCE O E?ECI7EORDER NO. 1. PEIIONERS DO NO :67E LE06L S6NDIN0 O 6SS6IL :E CONSIION6LI O E?ECI7EORDER NO. 1.

II.

E?ECI7E ORDER NO. 1 IS CONSIION6L 6ND 76LID. E?ECI7E ORDER NO. 1 DOES NO 6RRO06E :EPOERS O CON0RESS O CRE6E 6 P2LIC OICE 6ND O 6PPROPRI6E NDS OR IS OPER6IONS.

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III.

:E E?ECI7E CRE6ED :E R: CO;;ISSION PRI;6RIL 6S 6 OOL OR N6ION-2ILDIN0 OINDEPENDENL DEER;INE :E PRINCIP6L C6SES 6ND CONSEENCES O CORRPION 6ND O ;6ME POLICRECO;;END6IONS OR :EIR REDRESS 6ND RE PRE7ENION. 6L:O0: IS IN7ESI06ION ;6CONRI2E O S2SEEN PROSECORI6L EORS, :E CO;;ISSION ILL NO ENCRO6C: 2CO;PLE;EN :E POERS O :E O;2DS;6N 6ND :E DOJ IN IN7ESI06IN0 CORRPION.

I7.

E?ECI7E ORDER NO. 1 IS 76LID 6ND CONSIION6L. I DOES NO 7IOL6E :E E6L PROECION CL6SE.:E R: CO;;ISSION :6S LE0II;6E 6ND L6D62LE PRPOSES.

In resolvin% t!ese issues, t!e ponencia, penned #( t!e learned Justice Jose Catral ;endo5a, concludes t!at>

1. Petitioners !ave le%al standin% to "ile t!e instant petitionsA petitioner 2irao%o onl( #ecause o" t!e transcendentali&portance o" t!e issues involved, '!ile petitioner ;e&#ers o" t!e :ouse o" Representatives !ave standin% to <uestiont!e validit( o" an( o""icial action '!ic! alle%edl( in"rin%es on t!eir prero%atives as le%islatorsA

). !e creation o" t!e rut! Co&&ission #( E. O. No. 1 is not a valid exercise o" t!e PresidentBs po'er to reor%ani5eunder t!e 6d&inistrative Code o" 1@9A

*. :o'ever, t!e PresidentBs po'er to create t!e !erein assailed rut! Co&&ission is =usti"ied under Section 19,1 6rticle7II o" t!e Constitution, al#eit '!at &a( #e created is &erel( an ad !oc Co&&issionA

+. !e rut! Co&&ission does not supplant t!e O&#uds&an or t!e Depart&ent o" Justice 3DOJ4 nor erode t!eirrespective po'ersA and

. Nonet!eless, E.O. No. 1 is unconstitutional #ecause it trans%resses t!e e<ual protection clause ens!rined in Section 1, 6rticle III o" t!e Constitution.

I a%ree 'it! t!e ponencia t!at, %iven our li#eral approac! in David v. 6rro(o) and su#se<uent cases, petitioners !ave locus standi toraise t!e <uestion o" constitutionalit( o" t!e rut! Co&&issionBs creation. I also concur 'it! Justice ;endo5aBs conclusion t!at t!erut! Co&&ission 'ill not supplant t!e O""ice o" t!e O&#uds&an or t!e DOJ, nor i&per&issi#l( encroac! upon t!e latterBs exerciseo" constitutional and statutor( po'ers.

I a%ree 'it! t!e ponencia t!at t!e President o" t!e P!ilippines can create an ad !oc investi%ative #od(. 2ut &ore t!an t!at, I #elievet!at, necessaril( i&plied "ro& !is po'er o" control over all executive depart&ents and !is constitutional dut( to "ait!"ull( execute t!ela's, as 'ell as !is statutor( aut!orit( under t!e 6d&inistrative Code o" 1@9, t!e President &a( create a pu#lic o""ice.

:o'ever, I "ind &(sel" una#le to concur 'it! Justice ;endo5aBs considered opinion t!at E.O. No. 1 #reac!es t!e constitutional%uarantee o" e<ual protection o" t!e la's.

Let &e elucidate.

!e rut! Co&&ission is a Pu#lic O""ice

!e "irst o" t'o core <uestions t!at con"ront t!e Court in t!is controvers( is '!et!er t!e President o" t!e P!ilippines can create apu#lic o""ice. 6 corollar(, as a conse<uence o" state&ents &ade #( t!e Solicitor 0eneral durin% t!e oral ar%u&ent, is '!et!er t!erut! Co&&ission is a pu#lic o""ice.

6 pu#lic o""ice is de"ined as t!e ri%!t, aut!orit(, or dut(, created and con"erred #( la', #( '!ic! "or a %iven period, eit!er "ixed #( la'or endurin% at t!e pleasure o" t!e creatin% po'er, an individual is invested 'it! so&e soverei%n po'er o" %overn&ent to #eexercised #( !i& "or t!e #ene"it o" t!e pu#lic.* Pu#lic o""ices are created eit!er #( t!e Constitution, #( valid statutor( enact&ents, or#( aut!orit( o" la'. 6 person '!o !olds a pu#lic o""ice is a pu#lic o""icer.

0iven t!e po'ers con"erred upon it, as spelled out in E.O. No. 1, t!ere can #e no dou#t t!at t!e rut! Co&&ission is a pu#lic o""ice,and t!e C!air&an and t!e Co&&issioners appointed t!ereto, pu#lic o""icers.

6s 'ill #e discussed !ereunder, it is &( respect"ul su#&ission t!at t!e President o" t!e P!ilippines !as a&ple le%al aut!orit( tocreate a pu#lic o""ice, in t!is case, t!e rut! Co&&ission. !is aut!orit( "lo's "ro& t!e PresidentBs constitutional po'er o" control in

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con=unction 'it! !is constitutional dut( to ensure t!at la's #e "ait!"ull( executed, coupled 'it! provisions o" a valid statutor(enact&ent, E.O. No. )), ot!er'ise $no'n as t!e 6d&inistrative Code o" 1@9.

E. O. No. 1 and t!e Executive Po'er

Central to t!e resolution o" t!ese consolidated petitions is an understandin% o" t!e /lines o" de&arcation/ o" t!e po'ers o"%overn&ent, i.e., t!e doctrine o" separation o" po'ers. !e land&ar$ case o" 0overn&ent o" t!e P!ilippine Islands v. Sprin%er + !as

&apped out t!is le%al doctrine>

!e 0overn&ent o" t!e P!ilippines Islands is an a%enc( o" t!e Con%ress o" t!e nited States. !e po'ers '!ic! t!e Con%ress, t!eprincipal, !as seen "it to entrust to t!e P!ilippine 0overn&ent, t!e a%ent, are distri#uted a&on% t!ree coordinate depart&ents, t!eexecutive, t!e le%islative, and t!e =udicial. It is true t!at t!e Or%anic 6ct contains no %eneral distri#utin% clause. 2ut t!e principle isclearl( deduci#le "ro& t!e %rant o" po'ers. It is expressl( incorporated in our 6d&inistrative Code. It !as ti&e and a%ain #eenapprovin%l( en"orced #( t!is court.

No depart&ent o" t!e %overn&ent o" t!e P!ilippine Islands &a( le%all( exercise an( o" t!e po'ers con"erred #( t!e Or%anic La'upon an( o" t!e ot!ers. 6%ain it is true t!at t!e Or%anic La' contains no suc! explicit pro!i#itions. 2ut it is "airl( i&plied #( t!edivision o" t!e %overn&ent into t!ree depart&ents. !e e""ect is t!e sa&e '!et!er t!e pro!i#ition is expressed or not. It !asrepeatedl( #een announced #( t!is court t!at eac! o" t!e #ranc!es o" t!e 0overn&ent is in t!e &ain independent o" t!e ot!ers. !edoctrine is too "ir&l( i&#edded in P!ilippine institutions to #e de#ata#le.

It is #e(ond t!e po'er o" an( #ranc! o" t!e 0overn&ent o" t!e P!ilippine islands to exercise its "unctions in an( ot!er 'a( t!an t!at

prescri#ed #( t!e Or%anic La' or #( local la's '!ic! con"or& to t!e Or%anic La'. !e 0overnor-0eneral &ust "ind !is po'ers andduties in t!e "unda&ental la'. 6n 6ct o" t!e P!ilippine Le%islature &ust co&pl( 'it! t!e %rant "ro& Con%ress. !e =urisdiction o" t!iscourt and ot!er courts is derived "ro& t!e constitutional provisions.

x x x

!e Or%anic 6ct vests /t!e supre&e executive po'er/ in t!e 0overnor-0eneral o" t!e P!ilippine Islands. In addition to speci"ied"unctions, !e is %iven /%eneral supervisions and control o" all t!e depart&ents and #ureaus o" t!e %overn&ent o" t!e P!ilippineIslands as "ar is not inconsistent 'it! t!e provisions o" t!is 6ct./ :e is also &ade /responsi#le "or t!e "ait!"ul execution o" t!e la's o"t!e P!ilippine islands and o" t!e nited States operative 'it!in t!e P!ilippine Islands./ !e aut!orit( o" t!e 0overnor-0eneral is&ade secure #( t!e i&portant proviso /t!at all executive "unctions o" 0overn&ent &ust #e directl( under t!e %overnor-0eneral or'it!in one o" t!e executive depart&ents under t!e supervision and control o" t!e %overnor-%eneral./ 2( t!e 6d&inistrative Code,/t!e %overnor-%eneral, as C!ie" executive o" t!e islands, is c!ar%ed 'it! t!e executive control o" t!e P!ilippine 0overn&ent, to #eexercised in person or t!rou%! t!e Secretaries o" Depart&ents, or ot!er proper a%enc(, accordin% to la'./

!ese /lines o" de&arcation/ !ave #een consistentl( reco%ni5ed and up!eld in all su#se<uent Or%anic 6cts applied to t!eP!ilippines, includin% t!e present "unda&ental la', t!e 1@9 Constitution.

Section 1, 6rticle 7II o" t!e 1@9 Constitution vests executive po'er in t!e President o" t!e P!ilippines. On t!e nature o" t!eexecutive po'er, Justice Isa%ani 6. Cru5 'rites>

Executive po'er is #rie"l( descri#ed as t!e po'er to en"orce and ad&inister t!e la's, #ut it is actuall( &ore t!an t!is. In t!e exerciseo" t!is po'er, t!e President o" t!e P!ilippines assu&es a plenitude o" aut!orit(, and t!e correspondin% a'eso&e responsi#ilit(, t!at&a$es !i&, indeed, t!e &ost in"luential person in t!e land.8

In National Electri"ication 6d&inistration v. Court o" 6ppeals,9 t!is Court said t!at, as t!e ad&inistrative !ead o" t!e %overn&ent, t!ePresident is vested 'it! t!e po'er to execute, ad&inister and carr( out la's into practical operation. I&pressed upon us, t!en, is t!e"act t!at executive po'er is t!e po'er o" carr(in% out t!e la's into practical operation and en"orcin% t!eir due o#servance.

Relevant to t!is dis<uisition are t'o speci"ic po'ers t!at "lo' "ro& t!is /plenitude o" aut!orit(./ 2ot! are "ound in Section 19, 6rticle

7II o" t!e Constitution.@ !e( are co&&onl( re"erred to as t!e po'er o" control and t!e ta$e care clause.

Section 19 is a sel"-executin% provision. !e PresidentBs po'er o" control is derived directl( "ro& t!e Constitution and not "ro& an(i&ple&entin% le%islation. On t!e ot!er !and, t!e po'er to ta$e care t!at t!e la's #e "ait!"ull( executed &a$es t!e President ado&inant "i%ure in t!e ad&inistration o" t!e %overn&ent. !e la' !e is supposed to en"orce includes t!e Constitution itsel", statutes,

=udicial decisions, ad&inistrative rules and re%ulations and &unicipal ordinances, as 'ell as t!e treaties entered into #( our%overn&ent.1 6t al&ost ever( cusp o" executive po'er is t!e PresidentBs po'er o" control and !is constitutional o#li%ation to ensuret!e "ait!"ul execution o" t!e la's.

De&onstratin% t!e &ira#ile dictu o" presidential po'er and o#li%ation, 'e declared in Ople v. orres>11
























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6s !ead o" t!e Executive Depart&ent, t!e President is t!e C!ie" Executive. :e represents t!e %overn&ent as a '!ole and sees to itt!at all la's are en"orced #( t!e o""icials and e&plo(ees o" !is depart&ent. :e !as control over t!e executive depart&ent, #ureausand o""ices. !is &eans t!at !e !as t!e aut!orit( to assu&e directl( t!e "unctions o" t!e executive depart&ent, #ureau and o""ice, orinter"ere 'it! t!e discretion o" its o""icials. Corollar( to t!e po'er o" control, t!e President also !as t!e dut( o" supervisin% t!een"orce&ent o" la's "or t!e &aintenance o" %eneral peace and pu#lic order. !us, !e is %ranted ad&inistrative po'er over #ureausand o""ices under !is control to ena#le !i& to disc!ar%e !is duties e""ectivel(.

;ondano v. Silvosa,1) de"ines t!e po'er o" control as /t!e po'er o" an o""icer to alter, &odi"(, or set aside '!at a su#ordinate o""icer

!ad done in t!e per"or&ance o" !is duties, and to su#stitute t!e =ud%&ent o" t!e "or&er "or t!at o" t!e latter./ It includes t!e aut!orit(to order t!e doin% o" an act #( a su#ordinate, or to undo suc! act or to assu&e a po'er directl( vested in !i& #( la'.1*

In t!is re%ard, 6raneta v. 0at&aitan1+ is instructive>

I" under t!e la' t!e Secretar( o" 6%riculture and Natural Resources !as aut!orit( to re%ulate or #an "is!in% #( tra'l, t!en t!ePresident o" t!e P!ilippines &a( exercise t!e sa&e po'er and aut!orit( #ecause o" t!e "ollo'in%> 3a4 !e President s!all !avecontrol o" all t!e executive depart&ents, #ureaus or o""ices pursuant to Section 1314, 6rticle 7II, o" t!e ConstitutionA 3#4 ExecutiveOrders &a( #e issued #( t!e President under Section 8* o" t!e Revised 6d&inistrative Code >%overnin% t!e %eneral per"or&ance o"duties #( pu#lic e&plo(ees or disposin% o" issues o" %eneral concernA/ and 3c4 nder Section 9+ o" t!e Revised 6d&inistrativeCode, /6ll executive "unctions o" t!e 0overn&ent o" t!e Repu#lic o" t!e P!ilippines s!all #e directl( under t!e ExecutiveDepart&ent, su#=ect to t!e supervision and control o" t!e President o" t!e P!ilippines in &atters o" %eneral polic(./

Our rulin% in Cit( o" Ili%an v. Director o" Lands1 ec!oes t!e sa&e principle in t!is 'ise>

Since it is t!e Director o" Lands '!o !as direct executive control a&on% ot!ers in t!e lease, sale or an( "or& o" concession ordisposition o" t!e land o" t!e pu#lic do&ain su#=ect to t!e i&&ediate control o" t!e Secretar( o" 6%riculture and Natural Resources,and considerin% t!at under t!e Constitution t!e President o" t!e P!ilippines !as control over all executive depart&ents, #ureaus ando""ices, etc., t!e President o" t!e P!ilippines !as t!ere"ore t!e sa&e aut!orit( to dispose o" t!e portions o" t!e pu#lic do&ain as !issu#ordinates, t!e Director o" Lands, and !is alter-e%o t!e Secretar( o" 6%riculture and Natural Resources.

ro& t!ese cited decisions, it is a#undantl( clear t!at t!e overarc!in% "ra&e'or$ in t!e PresidentBs po'er o" control ena#les !i& toassu&e directl( t!e po'ers o" an( executive depart&ent, #ureau or o""ice. Ot!er'ise stated, '!atever po'ers con"erred #( la'upon su#ordinate o""icials 'it!in !is control are po'ers also vested in t!e President o" t!e P!ilippines. In conte&plation o" la', !e&a( directl( exercise t!e po'ers o" t!e Secretar( o" orei%n 6""airs, t!e Secretar( o" National De"ense, t!e Co&&issioner o"Custo&s, or o" an( su#ordinate o""icial in t!e executive depart&ent. !us, !e could, "or exa&ple, ta$e upon !i&sel" t!e investi%ator("unctions o" t!e Depart&ent o" Justice, and personall( conduct an investi%ation. I" !e decides to do so, !e 'ould #e at li#ert( todele%ate a portion o" t!is investi%ator( "unction to a pu#lic o""icer, or a panel o" pu#lic o""icers, 'it!in !is O""ice and under !is control.!ere is no principle o" la' t!at proscri#es !is doin% so. In t!is context, t!e President &a(, t!ere"ore, create an a%enc( 'it!in !isO""ice to exercise t!e "unctions, or part o" t!e "unctions, t!at !e !as assu&ed "or !i&sel". Even t!e ponencia ad&its t!at t!is can #e

done.

!en t!is po'er o" control is =uxtaposed 'it! t!e constitutional dut( to ensure t!at la's #e "ait!"ull( executed, it is o#vious t!at, "ort!e e""ective exercise o" t!e ta$e care clause, it &a( #eco&e necessar( "or t!e President to create an o""ice, a%enc( or co&&ission,and c!ar%e it 'it! t!e aut!orit( and t!e po'er t!at !e !as c!osen to assu&e "or !i&sel". It 'ill not si&pl( #e an exercise o" t!epo'er o" control, #ut also a &easure intended to ensure t!at la's are "ait!"ull( executed.

o reiterate, t!e ta$e care clause is t!e constitutional &andate "or t!e President to ensure t!at la's #e "ait!"ull( executed. Dean7icente 0. Sinco o#served t!at t!e PresidentBs constitutional o#li%ation o" ensurin% t!e "ait!"ul execution o" t!e la's /is a"unda&ental "unction o" t!e executive !ead Kinvolvin%G a t'o-"old tas$, Ki.e.,G t!e en"orce&ent o" la's #( !i& and t!e en"orce&ent o"la's #( ot!er o""icers under !is direction./ 18

6s adverted to a#ove, t!e la's t!at t!e President is &andated to execute include t!e Constitution, statutes, =udicial decisions,ad&inistrative rules and re%ulations and &unicipal ordinances. 6&on% t!e constitutional provisions t!at t!e President is o#li%ed toen"orce are t!e "ollo'in% 0eneral Principles and State Policies o" t!e 1@9 P!ilippine Constitution>

Section +, 6rticle II> !e pri&e dut( o" %overn&ent is to serve and protect t!e people x x x

Section , 6rticle II> !e &aintenance o" peace and order, t!e protection o" li"e, li#ert( and propert(, and pro&otion o" t!e %eneral'el"are are essential "or t!e en=o(&ent #( all t!e people o" t!e #lessin%s o" de&ocrac(.

Section , 6rticle II> !e State s!all pro&ote a =ust and d(na&ic social order t!at 'ill ensure t!e prosperit( and independence o" t!enation and "ree t!e people "ro& povert( t!rou%! policies t!at provide ade<uate social services, pro&ote "ull e&plo(&ent, a risin%standard o" livin%, and an i&proved <ualit( o" li"e "or all.















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Section 1*, 6rticle II> !e State values t!e di%nit( o" ever( !u&an person and %uarantees "ull respect "or !u&an ri%!ts.

Section )9, 6rticle II> !e State s!all &aintain !onest( and inte%rit( in t!e pu#lic service and ta$e positive and e""ective &easuresa%ainst %ra"t and corruption.

Section )@, 6rticle II> Su#=ect to reasona#le conditions prescri#ed #( la', t!e State adopts and i&ple&ents a polic( o" "ull pu#licdisclosure o" all its transactions involvin% pu#lic interest.

Closer to !o&e, as !ead o" t!e #i%%est #ureaucrac( in t!e countr(, t!e President &ust also see to t!e "ait!"ul execution o" Section1, 6rticle ?I o" t!e Constitution, '!ic! reads> /Pu#lic o""ice is a pu#lic trust. Pu#lic o""icers and e&plo(ees &ust at all ti&es #eaccounta#le to t!e peopleA serve t!e& 'it! ut&ost responsi#ilit(, inte%rit(, lo(alt( and e""icienc(A act 'it! patriotis& and =usticeA andlead &odest lives./

!ese are constitutional provisions t!e en"orce&ent o" '!ic! is inextrica#l( lin$ed to t!e spirit and o#=ective o" E.O. No. 1.

6lt!ou%! onl( Section 1, 6rticle ?I, is cited in t!e !ereas clauses o" E. O. No. 1, t!e President is o#li%ed to execute t!e ot!erconstitutional principles as 'ell. 6#sent an( la' t!at provides a speci"ic &anner in '!ic! t!ese constitutional provisions are to #een"orced, or pro!i#its an( particular &ode o" en"orce&ent, t!e President could invo$e t!e doctrine o" necessar( i&plication, i.e., t!att!e express %rant o" t!e po'er in Section 19, 6rticle 7II, "or t!e President to "ait!"ull( execute t!e la's, carries 'it! it t!e %rant o" allot!er po'ers necessar(, proper, or incidental to t!e e""ective and e""icient exercise o" t!e expressl( %ranted po'er.19 !us, i" a rut!Co&&ission is dee&ed t!e necessar( ve!icle "or t!e "ait!"ul execution o" t!e constitutional &andate on pu#lic accounta#ilit(, t!ent!e po'er to create t!e sa&e 'ould necessaril( #e i&plied, and reasona#l( derived, "ro& t!e #asic po'er %ranted in t!e

Constitution. 6ccordin%l(, t!e ta$e care clause, in !ar&on( 'it! t!e PresidentBs po'er o" control, alon% 'it! t!e pertinent provisionso" t!e 6d&inistrative Code o" 1@9, 'ould =usti"( t!e issuance o" E. O. No. 1 and t!e creation o" t!e rut! Co&&ission.

urt!er to t!is discussion, it is co%ent to exa&ine t!e ad&inistrative "ra&e'or$ o" Executive Po'er, as outlined in t!e 6d&inistrativeCode.

uite lo%icall(, t!e po'er o" control and t!e ta$e care clause precede all ot!ers in t!e enu&eration o" t!e Po'ers o" t!e President.Section 1, 2oo$ III, itle I si&pl( restates t!e constitutional provision, to 'it>

SECION 1. Po'er o" Control.W!e President s!all !ave control o" all t!e executive depart&ents, #ureaus, and o""ices. :e s!allensure t!at t!e la's #e "ait!"ull( executed.

Next in t!e enu&eration is t!e ordinance po'er o" t!e President '!ic! de"ines executive orders, t!us>

SEC. ). Executive Orders. - 6cts o" t!e President providin% "or rules o" a %eneral or per&anent c!aracter in i&ple&entation orexecution o" constitutional or statutor( po'ers s!all #e pro&ul%ated in executive orders.

6t t!e #otto& o" t!e list are t!e ot!er po'ers 3C!apter 9, 2oo$ III o" t!e Code4 o" t!e President, '!ic! include t!e residual po'er,vi5>

SEC. 1. Po'ers nder t!e Constitution.W!e President s!all exercise suc! ot!er po'ers as are provided "or in t!e Constitution.

SEC. ). Residual Po'ers.Wnless Con%ress provides ot!er'ise, t!e president s!all exercise suc! ot!er po'ers and "unctionsvested in t!e President '!ic! are provided "or under t!e la's and '!ic! are not speci"icall( enu&erated a#ove, or '!ic! are notdele%ated #( t!e President in accordance 'it! la'.

In addition, pursuant to t!e or%ani5ational structure o" t!e Executive Depart&ent,1@ one o" t!e po'ers %ranted to t!e President is !iscontinuin% aut!orit( to reor%ani5e !is O""ice>1

SEC. *1. Continuin% 6ut!orit( o" t!e President to Reor%ani5e !is O""ice. - !e President, su#=ect to t!e polic( in t!e Executive O""iceand in order to ac!ieve si&plicit(, econo&( and e""icienc(, s!all !ave continuin% aut!orit( to reor%ani5e t!e ad&inistrative structureo" t!e O""ice o" t!e President. or t!is purpose, !e &a( ta$e an( o" t!e "ollo'in% actions>

314 Restructure t!e internal or%ani5ation o" t!e O""ice o" t!e President Proper, includin% t!e i&&ediate O""ices, t!ePresidential Special 6ssistantsF6dvisers S(ste& and t!e Co&&on sta"" Support S(ste&, #( a#olis!in%, consolidatin% or&er%in% units t!ereo" or trans"errin% "unctions "ro& one unit to anot!erA











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3*4 rans"er an( a%enc( under t!e O""ice o" t!e President to an( ot!er depart&ent or a%enc( as 'ell as trans"er a%enciesto t!e O""ice o" t!e President "ro& ot!er depart&ents or a%encies.

Consistent t!ere'it!, t!e 6d&inistrative Code provides in Section 1, C!apter 1, 2oo$ I7 3!e Executive 2ranc!4 t!at /KtG!eExecutive 2ranc! s!all !ave suc! Depart&ents as are necessar( "or t!e "unctional distri#ution o" t!e 'or$ o" t!e President and "ort!e per"or&ance o" t!eir "unctions./ :ence, t!e pri&ar( articulated polic( in t!e Executive 2ranc! is t!e or%ani5ation and&aintenance o" t!e Depart&ents to insure t!eir capacit( to plan and i&ple&ent pro%ra&s in accordance 'it! esta#lis!ed nationalpolicies.)

it! t!ese 6d&inistrative Code provisions in &ind, 'e note t!e tript(c! "unction o" t!e rut! Co&&ission, na&el(> 314 %at!er "actsA3)4 investi%ateA and 3*4 reco&&end, as set "ort! in Section 1 o" E.O. No. 1>

SECION 1. Creation o" a Co&&ission. !ere is !ere#( created t!e P:ILIPPINE R: CO;;ISSION, !ereina"ter re"erred toas t!e /CO;;ISSION,/ '!ic! s!all K1G pri&aril( see$ and "ind t!e trut! on, and to'ard t!is end, K)G investi%ate reports o" %ra"t andcorruption o" suc! scale and &a%nitude t!at s!oc$ and o""end t!e &oral and et!ical sensi#ilities o" t!e people, co&&itted #( t!epu#lic o""icers and e&plo(ees, t!eir co-principals, acco&plices and accessories "ro& t!e private sector, i" an(, durin% t!e previousad&inistrationA and t!erea"ter K*G reco&&end t!e appropriate action or &easure to #e ta$en t!ereon to ensure t!at t!e "ull &easureo" =ustice s!all #e served 'it!out "ear or "avor. 3e&p!asis and nu&#erin% supplied4

It is plain to see t!at t!e rut! Co&&issionBs "act-"indin% and investi%ation into /reports o" lar%e scale corruption #( t!e previousad&inistration/ involve polic(-&a$in% on issues o" "unda&ental concern to t!e President, pri&aril(, corruption and its lin$a%e to t!ecountr(Bs social and econo&ic develop&ent.

On t!is point, I di""er "ro& t!e ponencia, as it reads t!e PresidentBs po'er to reor%ani5e in a di""erent li%!t, vi5>

!e <uestion, t!ere"ore, #e"ore t!e Court is t!is> Does t!e creation o" t!e rut! Co&&ission "all 'it!in t!e a&#it o" t!e po'er toreor%ani5e as expressed in Section *1 o" t!e Revised 6d&inistrative Code Section *1 conte&plates /reor%ani5ation/ as li&ited #(t!e "ollo'in% "unctional and structural lines> 314 restructurin% t!e internal or%ani5ation o" t!e O""ice o" t!e President Proper #(a#olis!in%, consolidatin% or &er%in% units t!ereo" or trans"errin% "unctions "ro& one unit to anot!erA 3)4 trans"errin% an( "unctionunder t!e O""ice o" t!e President to an( ot!er Depart&entF6%enc( or vice versaA or 3*4 trans"errin% an( a%enc( under t!e O""ice o"t!e President to an( ot!er Depart&entF6%enc( or vice versa. Clearl(, t!e provision re"ers to reduction o" personnel, consolidation o"o""ices, or a#olition t!ereo" #( reason o" econo&( or redundanc( o" "unctions. !ese point to situations '!ere a #od( or an o""ice isalread( existent #( a &odi"ication or alteration t!ereo" !as to #e e""ected. !e creation o" an o""ice is no'!ere &entioned, &uc! lessenvisioned in said provision. 6ccordin%l(, t!e ans'er is in t!e ne%ative.

x x x

xxx KG!e creation o" t!e rut! Co&&ission is not =usti"ied #( t!e presidentBs po'er o" control. Control is essentiall( t!e po'er toalter or &odi"( or nulli"( or set aside '!at a su#ordinate o""icer !ad done in t!e per"or&ance o" !is duties and to su#stitute t!e =ud%&ent o" t!e "or&er 'it! t!at o" t!e latter. Clearl(, t!e po'er o" control is entirel( di""erent "ro& t!e po'er to create pu#lic o""ices.!e "or&er is in!erent in t!e Executive, '!ile t!e latter "inds #asis "ro& eit!er a valid dele%ation "ro& Con%ress, or !is in!erent dut(to "ait!"ull( execute t!e la's.

I a& constrained to disa%ree #ecause, contrar( to t!e ponenciaBs !oldin%, t!e PresidentBs po'er to reor%ani5e is not li&ited #( t!eenu&eration in Section *1 o" t!e 6d&inistrative Code.

6s previousl( discussed, t!e PresidentBs po'er o" control, in con=unction 'it! !is constitutional o#li%ation to "ait!"ull( execute t!ela's, allo's !is direct assu&ption o" t!e po'ers and "unctions o" executive depart&ents, #ureaus and o""ices.)1 o repeat, t!eoverarc!in% "ra&e'or$ in t!e PresidentBs po'er o" control ena#les !i& to assu&e directl( t!e "unctions o" an executive depart&ent.On t!e &acro level, t!e President exercises !is po'er o" control #( directl( assu&in% all t!e "unctions o" executive depart&ents,#ureaus or o""ices. On t!e &icro level, t!e President &a( directl( assu&e certain or speci"ic, not all, "unctions o" a Depart&ent. Int!e &ilieu under '!ic! t!e rut! Co&&ission is supposed to operate, pursuant to E. O. No. 1, onl( t!e investi%ator( "unction o" t!eDOJ "or certain cri&es is directl( assu&ed #( t!e President, t!en dele%ated to t!e rut! Co&&ission. 6"ter all, it is axio&atic t!at

t!e %rant o" #road po'ers includes t!e %rant o" a lesser po'erA in t!is case, to #e exercised W and dele%ated Wat t!e PresidentBsoption.

;( conclusion t!at t!e trans"er o" "unctions o" a Depart&ent to t!e O""ice o" t!e President "alls 'it!in t!e PresidentBs po'er o"reor%ani5ation is rein"orced #( =urisprudence.

In Larin v. Executive Secretar(,)) t!e Court sustained t!e PresidentBs po'er to reor%ani5e under Section ), 2oo$ III o" E.O. )), inrelation to PD No. 1+18, as a&ended #( PD No. 199)>

6not!er le%al #asis o" E.O. No. 1*) is Section ), 2oo$ III o" E.O. No. )) '!ic! states>









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/Sec. ). Residual Po'ers.Wnless Con%ress provides ot!er'ise, t!e President s!all exercise suc! ot!er po'ers and "unctionsvested in t!e President '!ic! are provided "or under t!e la's and '!ic! are not speci"icall( enu&erated a#ove or '!ic! are notdele%ated #( t!e President in accordance 'it! la'.

!is provision spea$s o" suc! ot!er po'ers vested in t!e president under t!e la'. !at la' t!en %ives !i& t!e po'er toreor%ani5e It is Presidential decree No. 199) '!ic! a&ended Presidential Decree no. 1+18. !ese decrees expressl( %rant t!ePresident o" t!e P!ilippines t!e continuin% aut!orit( to reor%ani5e t!e national %overn&ent, '!ic! includes t!e po'er to %roup,consolidate #ureaus and a%encies, to a#olis! o""ices, to trans"er "unctions, to create and classi"( "unctions, services and activities

and to standardi5e salaries and &aterials. !e validit( o" t!ese t'o decrees are un<uestiona#le. !e 1@9 Constitution clearl(provides t!at /all la's, decrees, executive orders, procla&ations, letters o" instructions and ot!er executive issuances notinconsistent 'it! t!is Constitution s!all re&ain operative until a&ended, repealed or revo$ed./ So "ar, t!ere is (et not la' a&endin%or repealin% said decrees.

Su#se<uentl(, 2u$lod n% Ma'anin% EII2 v. a&ora,)* a""ir&ed t!e !oldin% in Larin and explicitl( reco%ni5ed t!e PresidentBs aut!orit(to trans"er "unctions o" ot!er Depart&ents or 6%encies to t!e O""ice o" t!e President, consistent 'it! !is po'ers o" reor%ani5ation, to'it>

2ut o" course, t!e list o" le%al #asis aut!ori5in% t!e President to reor%ani5e an( depart&ent or a%enc( in t!e executive #ranc! doesnot !ave to end !ere. e &ust not lose si%!t o" t!e ver( sources o" t!e po'erWt!at '!ic! constitutes an express %rant o" po'er.nder Section *1, 2oo$ III o" Executive Order No. )) 3ot!er'ise $no'n as t!e 6d&inistrative Code o" 1@94, /t!e President,su#=ect to t!e polic( in t!e Executive O""ice and in order to ac!ieve si&plicit(, econo&( and e""icienc(, s!all !ave t!e continuin%aut!orit( to reor%ani5e t!e ad&inistrative structure o" t!e O""ice o" t!e president./ or t!is purpose, !e &a( trans"er t!e "unctions o"ot!er Depart&ents or 6%encies to t!e O""ice o" t!e President. In Canoni5ado v. 6%uirre, 'e ruled t!at reor%ani5ation /involves t!e

reduction o" personnel, consolidation o" o""ices, or a#olition t!ereo" #( reason o" econo&( or redundanc( o" "unctions./ It ta$es place'!en t!ere is an alteration o" t!e existin% structure o" %overn&ent or units t!erein, includin% t!e lines o" control, aut!orit( andresponsi#ilit( #et'een t!e&. xxx 3e&p!asis supplied4

!en, and <uite si%ni"icantl(, in 2a%aoisan v. National o#acco 6d&inistration,)+ t!is Court clari"ied t!e nature o" t!e %rant to t!ePresident o" t!e po'er to reor%ani5e t!e ad&inistrative structure o" t!e O""ice o" t!e President, t!us>

In t!e recent case o" Rosa Li%a(a C. Do&in%o, et. al. v. :on. Ronaldo d. a&ora, in !is capacit( as t!e Executive Secretar(, et. al.,t!is Court !as !ad occasion to also delve on t!e PresidentBs po'er to reor%ani5e t!e O""ice o" t!e President under Section *1 3)4and 3*4 o" Executive Order No. )) and t!e po'er to reor%ani5e t!e O""ice o" t!e President Proper. !e Court !as t!ere o#served>

/x x x. nder Section *1314 o" E.O. )), t!e President can reor%ani5e t!e O""ice o" t!e President Proper #( a#olis!in%, consolidatin%or &er%in% units, or #( trans"errin% "unctions "ro& one unit to anot!er. In contrast, under Section *13)4 and 3*4 o" EO )), t!ePresidentBs po'er to reor%ani5e o""ices outside t!e O""ice o" t!e President Proper #ut still 'it!in t!e O""ice o" t!e President is li&itedto &erel( trans"errin% "unctions or a%encies "ro& t!e O""ice o" t!e President to Depart&ents or 6%encies, and vice versa./

!e provisions o" Section *1, 2oo$ III, C!apter 1, o" Executive Order No. )) 36d&inistrative code o" 1@94, a#ove-re"erred to,reads t!usl(>

Sec. *1. Continuin% 6ut!orit( o" t!e President to Reor%ani5e !is O""ice. - !e President, su#=ect to t!e polic( in t!e Executive O""iceand in order to ac!ieve si&plicit(, econo&( and e""icienc(, s!all !ave continuin% aut!orit( to reor%ani5e t!e ad&inistrative structureo" t!e O""ice o" t!e President. or t!is purpose, !e &a( ta$e an( o" t!e "ollo'in% actions>

314 Restructure t!e internal or%ani5ation o" t!e O""ice o" t!e President Proper, includin% t!e i&&ediate O""ices, t!ePresidential Special 6ssistantsF6dvisers S(ste& and t!e Co&&on sta"" Support S(ste&, #( a#olis!in%, consolidatin% or&er%in% units t!ereo" or trans"errin% "unctions "ro& one unit to anot!erA


3*4 rans"er an( a%enc( under t!e O""ice o" t!e President to an( ot!er depart&ent or a%enc( as 'ell as trans"er a%enciesto t!e O""ice o" t!e President "ro& ot!er depart&ents or a%encies.

!e "irst sentence o" t!e la' is an express %rant to t!e President o" a continuin% aut!orit( to reor%ani5e t!e ad&inistrative structureo" t!e O""ice o" t!e President. !e succeedin% nu&#ered para%rap!s are not in t!e nature o" provisos t!at undul( li&it t!e ai& andscope o" t!e %rant to t!e President o" t!e po'er to reor%ani5e #ut are to #e vie'ed in consonance t!ere'it!. Section *1314 o"Executive order No. )) speci"icall( re"ers to t!e PresidentBs po'er to restructure t!e internal or%ani5ation o" t!e O""ice o" t!ePresident Proper, #( a#olis!in%, consolidatin% or &er%in% units !ereo" or trans"errin% "unctions "ro& unit to anot!er, '!ile Section*13)4 and 3*4 concern executive o""ices outside t!e O""ice o" t!e President Proper allo'in% t!e President to trans"er an( "unctionunder t!e O""ice o" t!e President to an( ot!er Depart&ent or 6%enc( and vice versa, and t!e trans"er o" an( a%enc( under t!e O""iceo" t!e President to an( ot!er depart&ent or a%enc( and vice versa. 3E&p!asis supplied4





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Nota#l(, #ased on our rulin% in 2a%aoisan, even i" 'e do not consider P.D. No. 1+18, as a&ended #( P.D. No. 199), t!e a#stractiono" t!e rut! Co&&ission, as "orti"ied #( t!e PresidentBs po'er to reor%ani5e "ound in para%rap! ), Section *1 o" t!e 6d&inistrativeCode, is de&onstra#l( per&itted.

!at t!e rut! Co&&ission is a derivative o" t!e reor%ani5ation o" t!e O""ice o" t!e President s!ould #roo$ no dissent. !e Presidentis not precluded "ro& trans"errin% and re-ali%nin% t!e "act-"indin% "unctions o" t!e di""erent Depart&ents re%ardin% certain andspeci"ic issues, #ecause ulti&atel(, t!e PresidentBs aut!orit( to reor%ani5e is derived "ro& t!e po'er-and-dut( nexus "les!ed out int!e t'o po'ers %ranted to !i& in Section 19, 6rticle 7II o" t!e Constitution.)

I earnestl( #elieve t!at, even 'it! t!is CourtBs expanded po'er o" =udicial revie', 'e still cannot re"as!ion, and dictate on, t!e polic(deter&ination &ade #( t!e President concernin% '!at "unction, o" '!ic!ever Depart&ent, re%ardin% speci"ic issues, !e &a( c!ooseto directl( assu&e and ta$e co%ni5ance o". o do so 'ould exceed t!e #oundaries o" =udicial aut!orit( and encroac! on anexecutive prero%ative. It 'ould violate t!e principle o" separation o" po'ers, t!e constitutional %uarantee t!at no #ranc! o"%overn&ent s!ould arro%ate unto itsel" t!ose "unctions and po'ers vested #( t!e Constitution in t!e ot!er #ranc!es.)8

In "ine, it is &( su#&ission t!at t!e rut! Co&&ission is a pu#lic o""ice validl( created #( t!e President o" t!e P!ilippines underaut!orit( o" la', as an ad=unct o" t!e O""ice o" t!e President W to '!ic! t!e President !as validl( dele%ated t!e "act-"indin% andinvesti%ator( po'ers Ko" t!e Depart&ent o" JusticeG '!ic! !e !ad c!osen to personall( assu&e. urt!er, it is t!e product o" t!ePresidentBs exercise o" t!e po'er to reor%ani5e t!e O""ice o" t!e President %ranted under t!e 6d&inistrative Code.

!is conclusion inevita#l( #rin%s to t!e t!res!old o" our discussion t!e &atter o" t!e /independence/ o" t!e rut! Co&&ission,su#=ect o" an a&usin% exc!an%e 'e !ad 'it! t!e Solicitor 0eneral durin% t!e oral ar%u&ent, and to '!ic! t!e erudite Justice 6rturoD. 2rion devoted several pa%es in !is Separate Concurrin% Opinion. !e 'ord /independent,/ as used in E. O. No. 1, cannot #e

understood to &ean total separateness or "ull autono&( "ro& t!e O""ice o" t!e President. 2ein% a creation o" t!e President o" t!eP!ilippines, it cannot #e totall( dissociated "ro& its creator. 2( t!e nature o" its creation, t!e rut! Co&&ission is inti&atel( lin$ed tot!e O""ice o" t!e President, and t!e Executive Order, as it 'ere, is t!e u&#ilical cord t!at #inds t!e rut! Co&&ission to t!e O""iceo" t!e President.

!e 'ord /independent,/ used to descri#e t!e Co&&ission, s!ould #e interpreted as an expression o" t!e intent o" t!e President>t!at t!e rut! Co&&ission s!all #e accorded t!e "ullest &easure o" "reedo& and o#=ectivit( in t!e pursuit o" its &andate, un#oundand unin!i#ited in t!e per"or&ance o" its duties #( inter"erence or undue pressure co&in% "ro& t!e President. Our exc!an%e durin%t!e oral ar%u&ent ended on t!is note> t!at '!ile t!e rut! Co&&ission is, tec!nicall(, su#=ect to t!e po'er o" control o" t!ePresident, t!e latter !as &ani"ested !is intention, as indicated in t!e Executive Order, not to exercise t!e po'er over t!e acts o" t!eCo&&ission.

E. O. No. 1 and t!e E<ual Protection Clause

Ens!rined in Section 1, 6rticle III o" t!e P!ilippine Constitution is t!e assurance t!at all persons s!all en=o( t!e e<ual protection o"

t!e la's, expressed as "ollo's>

Section 1. No person s!all #e deprived o" li"e, li#ert(, or propert( 'it!out due process o" la', nor s!all an( person #e denied t!ee<ual protection o" t!e la's. 3e&p!asis supplied4

!e e<ualit( %uaranteed under t!is clause is e<ualit( under t!e sa&e conditions and a&on% persons si&ilarl( situatedA it is e<ualit(a&on% e<uals, not si&ilarit( o" treat&ent o" persons '!o are classi"ied #ased on su#stantial di""erences in relation to t!e o#=ect to#e acco&plis!ed.)9 !en t!in%s or persons are di""erent in "act or circu&stances, t!e( &a( #e treated in la' di""erentl(. On t!isscore, t!is Court !as previousl( intoned t!at>


6 la' is not invalid #ecause o" si&ple ine<ualit(. !e ver( idea o" classi"ication is t!at o" ine<ualit(, so t!at it %oes 'it!out sa(in%t!at t!e &ere "act o" ine<ualit( in no &anner deter&ines t!e &atter o" constitutionalit(. 6ll t!at is re<uired o" a valid classi"ications!ould #e #ased on su#stantial distinctions '!ic! &a$e "or real di""erencesA t!at it &ust #e %er&ane to t!e purpose o" t!e la'A t!at it

&ust not #e li&ited to existin% conditions onl(A and t!at it &ust appl( e<uall( to eac! &e&#er o" t!e class. !is Court !as !eld t!att!e standard is satis"ied i" t!e classi"ication or distinction is #ased on a reasona#le "oundation or rational #asis and is not palpa#l(ar#itrar(.)@

!us, '!en a statute or executive action is c!allen%ed on t!e %round t!at it violates t!e e<ual protection clause, t!e standards o" =udicial revie' are clear and une<uivocal>

It is an esta#lis!ed principle in constitutional la' t!at t!e %uarant( o" t!e e<ual protection o" t!e la's is not violated #( a le%islation#ased on a reasona#le classi"ication. Classi"ication, to #e valid, &ust> 314 rest on su#stantial distinctionsA 3)4 #e %er&ane to t!epurpose o" t!e la'A 3*4 not #e li&ited to existin% conditions onl(A and 3+4 appl( e<uall( to all &e&#ers o" t!e sa&e class.)















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urt!er, in a &ore recent decision, 'e also declared>

In consonance t!ereto, 'e !ave !eld t!at /in our =urisdiction, t!e standard and anal(sis o" e<ual protection c!allen%es in t!e &ain!ave "ollo'ed t!e Hrational #asisB test, coupled 'it! a de"erential attitude to le%islative classi"ications and a reluctance to invalidate ala' unless t!ere is a s!o'in% o" a clear and une<uivocal #reac! o" t!e Constitution./ x x x.

nder t!is test, a le%islative classi"ication, to survive an e<ual protection c!allen%e, &ust #e s!o'n to rationall( "urt!er a le%iti&ate

state interest. !e classi"ications &ust #e reasona#le and rest upon so&e %round o" di""erence !avin% a "air and su#stantial relationto t!e o#=ect o" t!e le%islation. Since ever( la' !as in its "avor t!e presu&ption o" constitutionalit(, t!e #urden o" proo" is on t!e oneattac$in% t!e constitutionalit( o" t!e la' to prove #e(ond reasona#le dou#t t!at t!e le%islative classi"ication is 'it!out rational #asis.!e presu&ption o" constitutionalit( can #e overco&e onl( #( t!e &ost explicit de&onstration t!at a classi"ication is a !ostile andoppressive discri&ination a%ainst particular persons and classes, and t!at t!ere is no conceiva#le #asis '!ic! &i%!t support it.*

!e /rational #asis/ test is one o" t!ree /levels o" scrutin(/ anal(ses developed #( courts in revie'in% c!allen%es o"unconstitutionalit( a%ainst statutes and executive action. Carl C!en%, in !is dissertation, /I&portant Ri%!t and t!e Private 6ttorne(0eneral Doctrine,/*1 enli%!tens us, t!us>

KIGn t!e area o" e<ual protection anal(sis, t!e =udiciar( !as developed a Hlevel o" scrutin(B anal(sis "or resolvin% t!e tensions in!erentin =udicial revie'. !en en%a%in% in t!is anal(sis, a court su#=ects t!e le%islative or executive action to one o" t!ree levels o"scrutin(, dependin% on t!e class o" persons and t!e ri%!ts a""ected #( t!e action. !e t!ree levels are rational #asis scrutin(,inter&ediate scrutin(, and strict scrutin(. I" a particular le%islative or executive act does not survive t!e appropriate level o" scrutin(,t!e act is !eld to #e unconstitutional. I" it does survive, it is dee&ed constitutional. !e t!ree tensions discussed a#ove and, in turn,t!e t!ree =udicial responses to eac!, run parallel to t!ese t!ree levels o" scrutin(. In response to eac! tension, t!e court applies a

speci"ic level o" scrutin(.

:e %oes on to explain t!ese /levels o" scrutin(/, as "ollo's>

!e "irst level o" scrutin(, rational #asis scrutin(, re<uires onl( t!at t!e purpose o" t!e le%islative or executive act not #e invidious orar#itrar(, and t!at t!e actBs classi"ication #e reasona#l( related to t!e purpose. Rational #asis scrutin( is applied to le%islative orexecutive acts t!at !ave t!e %eneral nature o" econo&ic or social 'el"are le%islation. !ile purportin% to set li&its, rational #asisscrutin( in practice results in co&plete =udicial de"erence to t!e le%islature or executive. !us, a le%islative or executive act '!ic! issu#=ect to rational #asis scrutin( is "or all practical purposes assured o" #ein% up!eld as constitutional.

!e second level o" scrutin(, inter&ediate scrutin(, re<uires t!at t!e purpose o" t!e le%islative or executive act #e an i&portant%overn&ental interest and t!at t!e actBs classi"ication #e si%ni"icantl( related to t!e purpose. Inter&ediate scrutin( !as #een appliedto classi"ications #ased on %ender and ille%iti&ac(. !e rationale "or t!is !i%!er level o" scrutin( is t!at %ender and ille%iti&ac(classi"ications !istoricall( !ave resulted "ro& invidious discri&ination. :o'ever, co&pared to strict scrutin(, inter&ediate scrutin(Bspresu&ption o" invidious discri&ination is &ore readil( re#utted, since #eni%n &otives are &ore l i$el( to underlie classi"ications

tri%%erin% inter&ediate scrutin(.

!e t!ird level o" scrutin( is strict scrutin(. Strict scrutin( re<uires t!at t!e le%islative or executive actBs purpose #e a co&pellin%state interest and t!at t!e actBs classi"ication #e narro'l( tailored to t!e purpose. Strict scrutin( is tri%%ered in t'o situations> 314'!ere t!e act in"rin%es on a "unda&ental ri%!tA and 3)4 '!ere t!e actBs classi"ication is #ased on race or national ori%in. !ile strictscrutin( purports to #e onl( a ver( close =udicial exa&ination o" le%islative or executive acts, "or all practical purposes, an act su#=ectto strict scrutin( is assured o" #ein% !eld unconstitutional. 3Citations o&itted.4

t!at, in a !ost o" cases, t!is Court !as reco%ni5ed t!e applica#ilit( o" t!e "ore%oin% tests. 6&on% t!e& are Cit( o" ;anila v. La%uio,Jr.,*) Central 2an$ E&plo(ees 6ssociation v. 2an%$o Sentral n% Pilipinas,** and 2ritis! 6&erican o#acco v. Ca&ac!o, et al.,*+ in allo" '!ic! t!e Court applied t!e &ini&u& level o" scrutin(, or t!e rational #asis test.

It is i&portant to re&e&#er t!at '!en t!is Court resolves an e<ual protection c!allen%e a%ainst a le%islative or executive act, /K'Gedo not in<uire '!et!er t!e Kc!allen%ed actG is 'ise or desira#le xxx. ;is%uided la's &a( nevert!eless #e constitutional. Our tas$ is&erel( to deter&ine '!et!er t!ere is Hso&e rationalit( in t!e nature o" t!e class sin%led out.B/*

La's classi"( in order to ac!ieve o#=ectives, #ut t!e classi"ication &a( not per"ectl( ac!ieve t!e o#=ective.*8 !us, in ;ic!ael ;. v.Supre&e Court o" Sono&a Count(,*9 t!e .S. Supre&e Court said t!at t!e relevant in<uir( is not '!et!er t!e statute is dra'n asprecisel( as it &i%!t !ave #een, #ut '!et!er t!e line c!osen K#( t!e le%islatureG is 'it!in constitutional li&itations. !e e<ualprotection clause does not re<uire t!e le%islature to enact a statute so #road t!at i t &a( 'ell #e incapa#le o" en"orce&ent.*@

It is e<uall( si%ni"icant to #ear in &ind t!at '!en a %overn&ental act dra's up a classi"ication, it actuall( creates t'o classes> oneconsists o" t!e people in t!e /statutor( class/ and t!e ot!er consists precisel( o" t!ose people necessar( to ac!ieve t!e o#=ective o"t!e %overn&ental action 3t!e /o#=ective class/4.* It could !appen t!at































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!e /statutor( class/ &a( include /&ore/ t!an is necessar( in t!e classi"ication to ac!ieve t!e o#=ective. I" so, t!e la' is /over-inclusive./ !e classi"ication &a( also include /less/ t!an is necessar( to ac!ieve t!e o#=ective. I" so, t!e statute is /under-inclusive./

6 cur"e' la', re<uirin% all persons under a%e ei%!teen to #e o"" t!e streets #et'een t!e !ours o" &idni%!t and 8 a.&., presu&a#l(!as as its o#=ective t!e prevention o" street cri&e #( &inorsA t!is is /over-inclusive/ since t!e class o" cri&inal &inors 3t!e o#=ectiveclass4 is co&pletel( included in t!e class o" people under a%e ei%!teen 3t!e statutor( class4, #ut &an( people under a%e ei%!teenare not part o" t!e class o" cri&inal &inors.

6 cit( ordinance t!at #ans streetcar vendors in a !eavil( visited /tourist <uarter/ o" t!e cit( in order to alleviate side'al$ and streetcon%estion is /under-inclusive/. 6ll streetcar vendors 3t!e statutor( class4 contri#ute to'ard side'al$ and street con%estion, #ut t!eclass o" people causin% side'al$ and street con%estion 3t!e o#=ective class4 surel( includes &an( ot!ers as 'ell.

It is rare i" not virtuall( i&possi#le "or a statutor( class and an o#=ective class to coincide per"ectl(.+

6nd, as t!e ponencia itsel" ad&its, /under-inclusion/ or /over-inclusion, per se, is not enou%! reason to invalidate a la' "or violationo" t!e e<ual protection clause, precisel( #ecause per"ection in classi"ication is not re<uired.+1

!us, in t!e deter&ination o" '!et!er t!e classi"ication is invidious or ar#itrar(, its relation to t!e purpose &ust #e exa&ined. ndert!e rational #asis test, t!e presence o" an( plausi#le le%iti&ate o#=ective "or t!e classi"ication, '!ere t!e classi"ication serves toacco&plis! t!at o#=ective to

an( de%ree, no &atter !o' tin(, 'ould validate t!e classi"ication. o #e invalidated on constitutional %rounds, t!e test re<uires t!at

t!e classi"ication &ust !ave one o" t!e "ollo'in% traits> 314 it !as a#solutel( no conceiva#le le%iti&ate purposeA or 3)4 it is sounconnected to an( conceiva#le o#=ective, t!at it is a#surd, utterl( ar#itrar(, '!i&sical, or even perverse.+)

0iven t!e "ore%oin% discussion on t!is constitutional %uarantee o" e<ual protection, 'e no' con"ront t!e <uestion> Does t!e&andate o" Executive Order No. 1, "or t!e rut! Co&&ission to investi%ate /%ra"t and corruption durin% t!e previous ad&inistration,/violate t!e e<ual protection clause

I ans'er in t!e ne%ative.

irst, #ecause Executive Order No. 1 passes t!e rational #asis test.

o repeat, t!e "irst level o" scrutin( $no'n as t!e rational #asis test, re<uires onl( t!at t!e purpose o" t!e le%islative or executive actnot #e invidious or ar#itrar(, and t!at t!e actBs classi"ication #e reasona#l( related to t!e purpose. !e classi"ication &ust #e s!o'nto rationall( "urt!er a le%iti&ate state interest.+* In its recent e<ual protection =urisprudence, t!e Court !as "ocused pri&aril( upon 314

t!e /rationalit(/ o" t!e %overn&entBs distinction, and 3)4 t!e /purpose/ o" t!at distinction.

o t!e point, 'e loo$ at t!e de"inition o" an executive order and t!e articulated purpose o" E.O. No. 1.

6n executive order is an act o" t!e President providin% "or rules in i&ple&entation or execution o" constitutional or statutor(po'ers.++ ro& t!is de"inition, it can easil( #e %leaned t!at E. O. No. 1 is intended to i&ple&ent a nu&#er o" constitutionalprovisions, a&on% ot!ers, 6rticle ?I, Section 1. In "act, E.O. No. 1 is pre"aced 'it! t!e principle t!at /pu#lic o""ice is a pu#lic trust/and /pu#lic o""icers and e&plo(ees, '!o are servants o" t!e people, &ust at all ti&e #e accounta#le to t!e latter, serve t!e& 'it!ut&ost responsi#ilit(, inte%rit(, lo(alt( and e""icienc(, act 'it! patriotis& and =ustice, and lead &odest lives./

!at li$e'ise co&es to &ind, al#eit not articulated t!erein, is 6rticle II, Section )9, o" t!e 1@9 Constitution, '!ic! declares t!at/KtG!e State s!all &aintain !onest( and inte%rit( in t!e pu#lic service and ta$e positive and e""ective &easures a%ainst %ra"t andcorruption./ In addition, t!e i&&ediatel( "ollo'in% section provides> /KsGu#=ect to reasona#le conditions prescri#ed #( la', t!e Stateadopts and i&ple&ents a polic( o" "ull pu#lic disclosure o" all its transactions involvin% pu#lic interest./+ !ere is also 6rticle ?I,Section 1, '!ic! sets t!e standard o" conduct o" pu#lic o""icers, &andatin% t!at /KpGu#lic o""icers and e&plo(ees &ust, at all ti&es,

#e accounta#le to t!e people, serve t!e& 'it! ut&ost responsi#ilit(, inte%rit(, lo(alt(, and e""icienc(A act 'it! patriotis& and =ustice,and lead &odest lives./ !ere is, t!ere"ore, no %ainsa(in% t!at t!e en"orce&ent o" t!ese provisions, i.e., t!e "i%!t a%ainst corruption,is a co&pellin% state interest.

Not onl( does t!e Constitution o#li%e t!e President to ensure t!at all la's #e "ait!"ull( executed,+8 #ut !e !as also ta$en an oat! topreserve and de"end t!e Constitution.+9 In t!is re%ard, t!e PresidentBs current approac! to restore pu#lic accounta#ilit( in%overn&ent service &a( #e said to involve a process, startin% 'it! t!e creation o" t!e rut! Co&&ission.

It is also no secret t!at various co&&issions !ad #een esta#lis!ed #( previous Presidents, eac! speci"icall( tas$ed to investi%atecertain reports and issues in "urt!erance o" state interest. 6&on% t!e latest o" suc! co&&issions is t!e eQarosa Co&&ission,e&po'ered to investi%ate t!e existence o" private ar&ies, as 'ell as t!e ;a%uindanao ;assacre.+@
























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nder E.O. No. 1, t!e President initiall( classi"ied t!e investi%ation o" reports o" %ra"t and corruption durin% t!e previousad&inistration #ecause o" !is avo'ed purpose to &aintain t!e pu#lic trust t!at is c!aracteristic o" a pu#lic o""ice. !e "irst recital3para%rap!4 o" E.O. No. 1 does not depart t!ere"ro&. !e succeedin% recitals 3para%rap!s4 enu&erate t!e causalit( o" &aintainin%pu#lic o""ice as a pu#lic trust 'it! corruption as /a&on% t!e &ost despica#le acts o" de"iance o" t!is principle and notorious violationo" t!is &andate./ ;oreover, t!e President vie's corruption as /an evil and scour%e '!ic! seriousl( a""ects t!e political, econo&ic,and social li"e o" a nation./ !us, t!e incu&#ent President !as deter&ined t!at t!e "irst p!ase o" !is "i%!t a%ainst %ra"t and corruptionis to !ave reports t!ereo" durin% t!e previous ad&inistration investi%ated. !ere is t!en a palpa#le relation #et'een t!e supposedclassi"ication and t!e articulated purpose o" t!e c!allen%ed executive order.

!e initial cate%ori5ation o" t!e issues and reports '!ic! are to #e t!e su#=ect o" t!e rut! Co&&issionBs investi%ation is t!ePresidentBs call. Pursuin% a s(ste& o" priorities does not translate to suspect classi"ication resultin% in violation o" t!e e<ualprotection %uarantee. In !is assi%n&ent o" priorities to address various %overn&ent concerns, t!e President, as t!e

C!ie" Executive, &a( initiall( li&it t!e "ocus o" !is in<uir( and investi%ate issues and reports one at a ti&e. 6s suc!, t!ere is actuall(no di""erential treat&ent t!at can #e e<uated to an invalid classi"ication.

E.O. No. 1 cannot #e su#=ected to t!e strict level o" scrutin( si&pl( #ecause t!ere is a clai&ed ine<ualit( on its "ace or in t!e &annerit is to #e applied. On its "ace, t!ere is actuall( no class created. !e ponencia !arps on t!ree provisions in t!e executive orderdirectin% t!e conduct o" an investi%ation into cases o" lar%e scale %ra"t and corruption /durin% t!e previous ad&inistration./ On t!at#asis, t!e ponencia concludes t!at t!ere is invidious discri&ination, #ecause t!e executive order is "ocused onl( on t!e i&&ediatepast ad&inistration.

I disa%ree. !ile t!e p!rase /previous ad&inistration/ alludes to persons, '!ic! &a(, indeed, #e a class 'it!in t!e e<ual protection

paradi%&, it is i&portant to note t!at t!e entire p!rase is /durin% t!e previous ad&inistration,/ '!ic! connotes a ti&e "ra&e t!atli&its t!e scope o" t!e Co&&issionBs in<uir(. !e p!rase does not reall( create a separate classA it &erel( la(s do'n t!e pertinentperiod o" in<uir(. !e li&ited period o" in<uir(, ostensi#l( 3#ut onl( initiall(4 excludin% ad&inistrations prior to t!e i&&ediate pastad&inistration, is not, per se, an intentional and invidious discri&ination anat!e&a to a valid classi"ication. Even %rantin% t!at t!ep!rase creates a class, E.O. No. 1 !as not, as (et, #een %iven an( roo& "or application, since #arel( a "e' da(s "ro& its issuance, it'as su#=ected to a constitutional c!allen%e. e cannot allo' t!e "uror %enerated #( t!is controvers( over t!e creation o" t!e rut!Co&&ission to #e an excuse to appl( t!e strict scrutin( test, t!ere #ein% no #asis "or a "acial c!allen%e, nor "or an /as-applied/c!allen%e.

o reiterate "or e&p!asis, t!e deter&ination o" t!e perceived instances o" %ra"t and corruption t!at ou%!t to clai& priorit( o"investi%ation is addressed to t!e executive, as it involves a polic( decision. !is deter&ination &ust not to #e overt!ro'n si&pl(#ecause t!ere are ot!er instances o" %ra"t and corruption '!ic! t!e rut! Co&&ission s!ould also investi%ate.+ In an( event,Section 19 o" E.O. No. 1 responds to t!is o#=ection, '!en it provides>

SECION 19. Special Provision Concernin% ;andate. I" and '!en in t!e =ud%&ent o" t!e President t!ere is a need to expand t!e

&andate o" t!e Co&&ission as de"ined in Section 1 !ereo" to include t!e investi%ation o" cases and instances o" %ra"t andcorruption durin% t!e prior ad&inistrations, suc! &andate &a( #e so extended accordin%l( #( 'a( o" a supple&ental ExecutiveOrder.

It &a( also #e pointed out t!at E.O. No. 1 does not con"er a ri%!t nor deprive an(one o" t!e exercise o" !is ri%!t. !ere is no ri%!tcon"erred nor lia#ilit( i&posed t!at 'ould constitute a #urden on "unda&ental ri%!ts so as to =usti"( t!e application o" t!e strictscrutin( test. 6 "act-"indin% investi%ation o" certain acts o" pu#lic o""icers co&&itted durin% a speci"ic period !ardl( &erits t!is CourtBsdistraction "ro& its re%ular "unctions. I" 'e &ust exercise t!e po'er o" =udicial revie', t!en 'e s!ould use t!e &ini&u& level o"scrutin(, t!e rational #asis test.

On &ore t!an one occasion, t!is Court denied e<ual protection c!allen%es to statutes 'it!out evidence o" a clear and intentionaldiscri&ination. !e pervasive t!e&e in t!ese rulin%s is a clai& o" discri&inator( prosecution, not si&pl( a clai& o" discri&inator(investi%ation. In People v. Piedra,1 'e explained>

!e prosecution o" one %uilt( person '!ile ot!ers e<uall( %uilt( are not prosecuted, !o'ever, is not, #( itsel", a denial o" t!e e<ual

protection o" t!e la's. !ere t!e o""icial action purports to #e in con"or&it( to t!e statutor( classi"ication, an erroneous or &ista$enper"or&ance o" t!e statutor( dut(, alt!ou%! a violation o" t!e statute, is not 'it!out &ore a denial o" t!e e<ual protection o" t!e la's.!e unla'"ul ad&inistration #( o""icers o" a statute "air on its "ace, resultin% in its une<ual application to t!ose '!o are entitled to #etreated ali$e, is not a denial o" e<ual protection unless t!ere is s!o'n to #e present in it an ele&ent o" intentional or purpose"uldiscri&ination. !is &a( appear on t!e "ace o" t!e action ta$en 'it! respect to a particular class or person, or it &a( onl( #e s!o'n#( extrinsic evidence s!o'in% a discri&inator( desi%n over anot!er not to #e in"erred "ro& t!e action itsel".B + -crm+or;:r:oe o :reme-, =ere m be + =o46 o "ce+r +- eo+ -crm+o." 6ppellant !as "ailed to s!o't!at, in c!ar%in% appellant in court, t!at t!ere 'as a /clear and intentional discri&ination/ on t!e part o" t!e prosecutin% o""icials.

!e discretion o" '!o to prosecute depends on t!e prosecutions sound assess&ent '!et!er t!e evidence #e"ore it can =usti"( areasona#le #elie" t!at a person !as co&&itted an o""ense. T=e :rem:o =+ =e :roec6 ocer re6+r;:erorme- =er -e, +- = :rem:o c+ be oercome o; b; :roo o =e cor+r;, o b; mere










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In an( i&puted violations o" t!e e<ual protection clause, t!e standard o" =udicial revie' is al'a(s pre"aced #( a presu&ption o"constitutionalit(>

6s t!is Court enters upon t!e tas$ o" passin% on t!e validit( o" an act o" a co-e<ual and coordinate #ranc! o" t!e 0overn&ent, it#ears e&p!asis t!at deepl( in%rained in our =urisprudence is t!e ti&e-!onored principle t!at statute is presu&ed to #e valid. !ispresu&ption is rooted in t!e doctrine o" separation o" po'ers '!ic! en=oins upon t!e t!ree coordinate depart&ents o" t!e0overn&ent a #eco&in% courtes( "or eac! ot!erBs acts. :ence, to dou#t is to sustain. !e t!eor( is t!at #e"ore t!e act 'as done ort!e la' 'as enacted, earnest studies 'ere &ade #( Con%ress, or t!e President, or #ot!, to insure t!at t!e Constitution 'ould not #e

#reac!ed. !is Court, !o'ever, &a( declare a la', or portions t!ereo", unconstitutional '!ere a petitioner !as s!o'n a clear andune<uivocal #reac! o" t!e Constitution, not &erel( a dou#t"ul or ar%u&entative one. In ot!er 'ords, #e"ore a statute or a portiont!ereo" &a( #e declared unconstitutional, it &ust #e s!o'n t!at t!e statute or issuance violates t!e Constitution clearl(, palpa#l(and plainl(, and in suc! a &anner as to leave no dou#t or !esitation in t!e &ind o" t!e Court.*

Clearl(, t!e acts o" t!e President, in t!e exercise o" !is or !er po'er, is preli&inaril( presu&ed constitutional suc! t!at t!e part(c!allen%in% t!e constitutionalit( t!ereo" 3t!e executive act4 on e<ual protection %rounds #ears t!e !eav( #urden o" s!o'in% t!at t!eo""icial act is ar#itrar( and capricious.+

Indeed, la's or executive orders, &ust co&pl( 'it! t!e #asic re<uire&ents o" t!e Constitution, and as c!allen%ed !erein, t!e e<ualprotection o" t!e la's. Nonet!eless, onl( in clear cases o" invalid classi"ication violative o" t!e e<ual protection clause 'ill t!is Courtstri$e do'n suc! la's or o""icial actions.

!ird, petitioner ;e&#ers o" t!e :ouse o" Representatives are not proper parties to c!allen%e t!e constitutionalit( o" E.O. No. 1 one<ual protection %rounds. Petitioner ;e&#ers o" t!e :ouse o" Representatives cannot ta$e up t!e lance "or t!e previous

ad&inistration. nder all t!ree levels o" scrutin( earlier discussed, t!e( are precluded "ro& raisin% t!e e<ual protection o" t!e la'sc!allen%e. !e perceptive notation #( &( estee&ed collea%ue, Justice Carpio ;orales, in !er dissent, co&es to li"e '!en s!eo#serves t!at petitioner ;e&#ers o" t!e :ouse o" Representatives cannot vicariousl( invo$e violation o" e<ual protection o" t!ela's. Even assu&in% E.O. No. 1 does dra' a classi"ication, &uc! less an unreasona#le one, petitioner ;e&#ers o" t!e :ouse o"Representatives, as 'ell as petitioner 2irao%o, are not covered #( t!e supposed ar#itrar( and unreasona#le classi"ication.

I" 'e applied #ot! inter&ediate and strict scrutin(, t!e na$edness o" petitionersB ar%u&ents are revealed #ecause t!e( do not clai&violation o" an( o" t!eir "unda&ental ri%!ts, nor do t!e( cr( discri&ination #ased on race, %ender and ille%iti&ac(. PetitionersB e<ualprotection clause c!allen%e li$e'ise dissolves '!en cali#rated a%ainst t!e purpose o" E.O. No. 1 and its supposed classi"ication o"t!e ad&inistration '!ic! t!e rut! Co&&ission is tas$ed to investi%ate. No'!ere in t!e pleadin%s o" petitioners and t!eir clai& o"violation o" separation o" po'ers and usurpation o" le%islative po'er #( t!e executive is it esta#lis!ed !o' suc! violation orusurpation translates to violation #( E.O. No. 1 o" t!e e<ual protection o" t!e la's. !us, no reason exists "or t!e &a=orit( to sustaint!e c!allen%e o" e<ual protection i" none o" t!e petitioners #elon% to t!e class, clai&ed #( t!e &a=orit( to #e, discri&inated a%ainst.

inall(, I 'is! to address t!e proposition contained in Justice 2rionBs concurrenceW t!e creation o" t!e rut! Co&&ission !as a

reasona#le o#=ective, al#eit acco&plis!ed t!rou%! unreasona#le &eans. 6ccordin% to !i&, E.O. No. 1 is o#=ectiona#le on dueprocess %rounds as 'ell. :e propounds t!at t!e /trut!-tellin%/ "unction o" t!e rut! Co&&ission violates due process #ecause itpri&es t!e pu#lic to accept t!e "indin%s o" t!e Co&&ission as actual and %ospel trut!.

Considerin% all t!e "ore%oin% discussion, I &ust, re%retta#l(, disa%ree 'it! t!e su%%estion. Peculiar to our nation is a ver#oseConstitution. :erein ens!rined are &ot!er!ood state&entsW ex!ortations "or pu#lic o""icers to "ollo'. 6 <uic$ perusal o" E.O. No. 1#ears out a si&ilar intonation. 6lt!ou%! t!e Solicitor 0eneral &a( !ave &ade certain declarations, read as ad&issions #( t!e ot!er;e&#ers o" t!is Court, t!ese cannot #ind t!e Supre&e Court in interpretin% t!e constitutional %rant o" executive po'er. !e &atteris si&pl( a "ailure o" articulation '!ic! cannot #e used to di&inis! t!e po'er o" t!e executive. On t!e '!ole, t!e erroneousdeclarations o" t!e Solicitor 0eneral, pree&ptin% and interpretin% t!e PresidentBs exercise o" executive po'er #e(ond t!e articulatedpurpose o" E.O. No. 1, are not e<uivalent to t!e 'ron%"ul exercise #( t!e President o" executive po'er.

Let &e t!en close t!is dissertation 'it! ;arcos v. ;an%lapus '!ic! trail#la5ed and rede"ined t!e extent o" =udicial revie' on t!epo'ers o" t!e co-e<ual #ranc!es o" %overn&ent, in particular, executive po'er>

nder t!e Constitution, =udicial po'er includes t!e dut( to /deter&ine '!et!er or not t!ere !as #een a %rave a#use o" discretiona&ountin% to lac$ or excess o" =urisdiction on t!e part( o" an( #ranc! or instru&entalit( o" t!e 0overn&ent./ xxx

!e present Constitution li&its resort to t!e political <uestion doctrine and #roadens t!e scope o" =udicial in<uir( into areas '!ic! t!eCourt, under previous constitutions, 'ould !ave nor&all( le"t to t!e political depart&ents to decide. 2ut nonet!eless t!ere re&ainissues #e(ond t!e CourtBs =urisdiction t!e deter&ination '!ic! is exclusivel( "or t!e President, "or Con%ress or "or t!e peoplet!e&selves t!rou%! a ple#iscite or re"erendu&. e cannot, "or exa&ple, <uestion t!e PresidentBs reco%nition o" a "orei%n%overn&ent, no &atter !o' pre&ature or i&provident suc! action &a( appear. e cannot set aside a presidential pardon t!ou%! it&a( appear to us t!at t!e #ene"iciar( is totall( undeservin% o" t!e %rant. Nor can 'e a&end t!e Constitution under t!e %uise o"resolvin% a dispute #rou%!t #e"ore us #ecause t!e po'er is reserved to t!e people.









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!ere is not!in% in t!e case #e"ore us t!at precludes our deter&ination t!ereo" on t!e political <uestion doctrine. !e deli#eration o"t!e Constitutional Co&&ission cited #( petitioners s!o' t!at t!e "ra&ers intended to 'iden t!e scope o" =udicial revie' #ut t!e( didnot intend courts o" =ustice to settle all actual controversies #e"ore t!e&. !en political <uestions are involved, t!e Constitutionli&its t!e deter&ination to '!et!er or not t!ere !as #een a %rave a#use o" discretion a&ountin% to lac$ or excess o" =urisdiction ont!e part o" t!e o""icial '!ose action is #ein% <uestioned. I" %rave a#use is not esta#lis!ed, t!e Court 'ill not su#stitute its =ud%&ent"or t!at o" t!e o""icial concerned and decide a &atter '!ic! #( its nature or #( la' is "or t!e latter alone to decide. In t!is li%!t, it'ould appear clear t!at t!e second para%rap! o" 6rticle 7III, Section 1 o" t!e Constitution, de"inin% /=udicial po'er,/ '!ic!speci"icall( e&po'ers t!e courts to deter&ine '!et!er or not t!ere !as #een a %rave a#use o" discretion on t!e part o" an( #ranc!

or instru&entalit( o" t!e %overn&ent, incorporates in t!e "unda&ental la' t!e rulin% in Lansan% v. 0arcia t!at>

6rticle 7II o" t!e K1*G Constitution vests in t!e Executive t!e po'er to suspend t!e privile%e o" t!e 'rit o" !a#eas corpus underspeci"ied conditions. Pursuant to t!e principle o" separation o" po'ers underl(in% our s(ste& o" %overn&ent, t!e Executive issupre&e 'it!in !is o'n sp!ere. :o'ever, t!e separation o" po'ers, under t!e Constitution, is not a#solute. !at is &ore, it %oes!and in !and 'it! t!e s(ste& o" c!ec$s and #alances, under '!ic! t!e Executive is supre&e, as re%ards t!e suspension o" t!eprivile%e, #ut onl( i" and '!en !e acts 'it!in t!e sp!ere allotted to !i& #( t!e 2asic La', and t!e aut!orit( to deter&ine '!et!er ornot !e !as so acted is vested in t!e Judicial Depart&ent, '!ic!, in t!is respect, is, in turn, constitutionall( supre&e.

In t!e exercise o" suc! aut!orit(, t!e "unction o" t!e Court is &erel( to c!ec$Wnot to supplantWt!e Executive, or to ascertain &erel('!et!er !e !as %one #e(ond t!e constitutional li&its o" !is =urisdiction, not to exercise t!e po'er vested in !i& or to deter&ine t!e'isdo& o" !is act.

It is "or t!e "ore%oin% reasons t!at I vote to DIS;ISS t!e petitions.

ANTONIO !DUARDO B. NACURA 6ssociate Justice

$oooe

1 SEC. 19. !e President s!all !ave control o" all t!e executive depart&ents, #ureau and o""ices. :e s!all ensure t!at t!ela's #e "ait!"ull( executed.

) 0.R. No. 191*8, ;a( *, )8, +@ SCR6 18.

* ernande5 v. Sto. o&as, *1) P!il. )*, )+9 314.

+ P!il. ) 31)94.

Section 1. !e executive po'er s!all #e vested in t!e President o" t!e P!ilippines.

8 Cru5, P!ilippine Political La' 3) ed.4, p. 1@).

9 0.R. No. 1+*+@1, e#ruar( 1, )).

@ Sec. 19. !e President s!all !ave control o" all t!e executive depart&ents, #ureaus and o""ices. :e s!all ensure t!at t!ela's #e "ait!"ull( executed.

Cru5, P!ilippine Political La' 3) ed.4, p. )1*.

1 Id. at )18.

11 *+ P!il. +@ 31@4.

1) 9 P!il. 1+* 314.

1* Cru5, P!ilippine Political La' 3) ed.4, pp. )11-)1).

1+ 11 P!il. *)@ 3194.

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1 0.R. No.L-*@), e#ruar( )8, 1@@, 1@ SCR6 1@.

18 Sinco, P!ilippine Political La' 31t! ed.4, p. )8.

19 See ;arcos v. ;an%lapus, 0.R. No. @@)11, Septe&#er 1, 1@, 19@ SCR6 98.

1@ See C!apter @, itle II, 2oo$ III o" t!e 6d&inistrative Code.

1 Section *1, C!apter 1, itle III, 2oo$ III o" t!e 6d&inistrative Code.

) Section ), C!apter 1, 2oo$ I7 o" t!e 1@9 6d&inistrative Code.

)1 Ople v. orres, *+ P!il + 31@4.

)) 0.R. No. 11)9+, Octo#er 18, 19, )@ SCR6 91*.

)* 0.R Nos. 1+)@1-1+)@), Jul( 1, )1, *8 SCR6 91@.

)+ 0.R. No. 1)@+, 6u%ust , )*, +@ SCR6 **9.

) Sinco, P!ilippine Political La', p. )81,

)8 See aQada v. 6n%ara, **@ P!il. +8 3194, '!ere t!e Court did not /revie' t!e 'isdo& o" t!e President and t!eSenate in enlistin% t!e countr( into t!e O, or pass upon t!e &erits o" trade li#erali5ation as a polic( espoused #( t!esaid international #od(./ !e issue passed upon #( t!e Court 'as li&ited to deter&inin% '!et!er t!ere !ad #een a %ravea#use o" discretion a&ountin% to lac$ or excess o" =urisdiction on t!e part o" t!e Senate in rati"(in% t!e O 6%ree&entand its t!ree annexes.

)9 2ritis! 6&erican o#acco v. Ca&ac!o, 0.R. No. 18*@*, 6u%ust ), )@, 8) SCR6 11.

)@ 7ictoriano v. Eli5alde Rope or$ersB nion, 1@ P!il. 8 319+4.

) Coconut Oil Re"iners 6ssociation v. orres, * P!il. +), *-+ 3)4.

* 2ritis! 6&erican o#acco, v. Ca&ac!o, et al., supra note )9.

*1 Cali"ornia La' Revie' 1), Dece&#er 1@.

*) 0.R. No. 11@1)9, 6pril 1), ), + SCR6 *@.

** +@9 P!il. *1 3)+4.

*+ Supra note )9.

* Prince Eric uller v. State o" Ore%on, +19 .S., +, + S.Ct.)118, + L.Ed.)d 99.

*8 Calvin ;asse(, Road&ap o" Constitutional La', 6spen La' U 2usiness, 19, p. *1.

*9 + .S. +8+, 11 S.Ct. 1), .S. Cal., 1@1, ;arc! )*, 1@1.

*@ Id.

* ;asse(, Road&ap o" Constitutional La', 6spen La' U 2usiness, 19, p. *1.

+ Id. at *)-*).





















































8/13/2019 G.R. No. 192935 December 7, 2010


+1 Id. at **.

+) Id.

+* Id. at ).

++ Section ), 2oo$ III, itle I, 6d&inistrative Code.

+ CONSIION, Section )@, 6rticle II.

+8 CONSIION, Section 19, 6rticle 7II.

+9 CONSIION, Section, , 6rticle 7II.

+@ See 6nnex /6/ o" t!e RespondentBs ;e&orandu&.

+ See> ;iller v. ilson, )*8 .S. *9*, *@+, * S. Ct. *+), L. Ed. 8)@ 3114.

See People v. Du&lao, 0.R. No. 18@1@, ;arc! ), ), @ SCR6 + citin% Santos v. People and People v. DelaPiedra.

1 0.R. No. 1)1999, Januar( )+, )1, * SCR6 18*.

) State v. :atori, ) :a'aii )19, )) K1G citin% State v. Sturc!, @) :a'aii )8, )98 K18G.

* Coconut Oil Re"iners 6ssociation, Inc., et al. v. :on. Ru#en orres, et. al., * P!il. +), *-+ 3)4.

+ People v. Dela Piedra, +* P!il. *1 3)14.

0.R. No. @@)11, Septe&#er 1, 1@, 199 SCR6 88@, 8-89.


CONCURRING OINION

L!ONARDOHD! CASTRO, J.:

I concur in t!e result o" t!e ponencia o" Justice Jose Catral ;endo5a and =oin t!e separate opinions o" &( collea%ues, C!ie" JusticeRenato C. Corona, Justice 6rturo D. 2rion and Justice Jose Portu%al Pere5. I vote to declare Executive Order No. 1 3EO No. 14unconstitutional, as a 'ell-intentioned, #ut ill-devised, presidential issuance t!at trans%resses t!e #oundaries o" executive po'erand responsi#ilit( set #( t!e Constitution and our la's.

!ile I a%ree 'it! t!e &a=orit( consensus t!at e<ual protection is an issue t!at &ust #e resolved in t!ese consolidated petitions, t!e'ei%!tier le%al o#stacles to t!e creation o" t!e P!ilippine rut! Co&&ission 3t!e Co&&ission4 #( executive order deserve %reaterattention in t!is discussion.

I" t!e Co&&ission created #( EO No. 1 'ere a livin% person, it 'ould #e su""erin% "ro& t!e &ost acute identit( crisis. Is it anindependent #od( Is it a &ere ad !oc "act-"indin% #od( under t!e control o" t!e President 6nd in eit!er case, '!at le%alrepercussion does its creation !ave on our constitutionall( and statutoril( developed s(ste& "or investi%atin% and prosecutin% %ra"tand corruption cases

Indeed, "ro& t!e ans'ers to t!ese <uestions, it #eco&es evident t!at t!ose '!o !ave desi%ned t!is constitutional ano&al(desi%nated as a /trut! co&&ission/ !ave painted t!e&selves into a le%al corner 'it! no escape.

I" t!e Co&&ission is an o""ice independent o" t!e President, t!en its creation #( executive "iat is unconstitutional.































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!e concept o" a /trut! co&&ission/ in ot!er =urisdictions !as a pri&ordial c!aracteristic independence. 6s a #od( created toinvesti%ate and report on t!e /trut!/ o" !istorical events 3ordinaril( involvin% State violations o" !u&an ri%!ts en &asse4 in a countr(in transition "ro& an aut!oritarian re%i&e to a de&ocratic one or "ro& a con"lict situation to one o" peace, t!e "reedo& o" t!e&e&#ers o" t!e trut! co&&ission "ro& an( "or& o" in"luence is para&ount to ensure t!e credi#ilit( o" an( "indin%s it &a( &a$e.

!us, /trut! co&&issions/ !ave #een descri#ed in t!is 'ise>

rut! co&&issions are non-=udicial, independent panels o" in<uir( t(picall( set up to esta#lis! t!e "acts and context o" seriousviolations o" !u&an ri%!ts or o" international !u&anitarian la' in a countr(Bs past. Co&&issionsB &e&#ers are usuall( e&po'ered toconduct researc!, support victi&s, and propose polic( reco&&endations to prevent recurrence o" cri&es. !rou%! t!eirinvesti%ations, t!e co&&issions &a( ai& to discover and learn &ore a#out past a#uses, or "or&all( ac$no'led%e t!e&. !e( &a(ai& to prepare t!e 'a( "or prosecutions and reco&&end institutional re"or&s. ;ost co&&issions "ocus on victi&sB needs as a pat!to'ard reconciliation and reducin% con"lict a#out '!at occurred in t!e past.1 3E&p!ases supplied.4

Nota#l(, t!e O""ice o" t!e nited Nations :i%! Co&&issioner "or :u&an Ri%!ts li$e'ise lists operational independence as one o"t!e core principles in t!e esta#lis!&ent o" a trut! co&&ission>

!e le%iti&ac( and pu#lic con"idence t!at are essential "or a success"ul trut! co&&ission process depend on t!e co&&issionBsa#ilit( to carr( out its 'or$ 'it!out political inter"erence. Once esta#lis!ed, t!e co&&ission s!ould operate "ree o" direct in"luence orcontrol #( t!e 0overn&ent, includin% in its researc! and investi%ations, #ud%etar( decision-&a$in%, and in its report andreco&&endations. !ere "inancial oversi%!t is needed, operational independence s!ould #e preserved. Political aut!orities s!ould%ive clear si%nals t!at t!e co&&ission 'ill #e operatin% independentl(.) 3E&p!ases supplied.4

it! due respect, I disa%ree 'it! Justice 6ntonio . CarpioBs opinion t!at t!e na&in% o" t!e #od( created #( EO No. 1 as t!e/P!ilippine rut! Co&&ission/ 'as a &ere atte&pt to #e novel, to depart "ro& t!e tired and repetitious sc!e&e o" na&in% aco&&ission a"ter its appointed !eadFleader or o" callin% it a /"act-"indin%/ #od(. O#viousl(, t!e title %iven to t!e Co&&ission is &eantto conve( t!e &essa%e t!at it is independent o" t!e O""ice o" t!e President.

!ose '!o dissent "ro& t!e &a=orit( position %loss over t!e "act t!at EO No. 1 itsel" expressl( states t!at t!e Co&&issionBs&e&#ers s!all /act as an independent colle%ial #od(./* Durin% oral ar%u&ents, t!e Solicitor 0eneral con"ir&ed t!at '!at EO No. 1intended is "or t!e Co&&ission to #e an independent #od( over '!ic! t!e President !as no po'er o" control.+ !e Solicitor 0eneral"urt!er clai&ed t!at one o" t!e "unctions o" t!e Co&&ission is /trut!-tellin%./ 7eril(, t!e creation o" t!e P!ilippine rut! Co&&issionand its na&in% as suc! 'ere done as a deli#erate re"erence to t!e tradition o" independent trut! co&&issions as t!e( are conceivedin international la', al#eit adapted to a particular "actual situation in t!is =urisdiction.

I" t!is P!ilippine rut! Co&&ission is an o""ice independent o" t!e President and not su#=ect to t!e latterBs control and supervision,t!en t!e creation o" t!e Co&&ission &ust #e done #( le%islative action and not #( executive order. It is undisputed t!at under ourconstitutional "ra&e'or$ onl( Con%ress !as t!e po'er to create pu#lic o""ices and %rant to t!e& suc! "unctions and po'ers as &a(

#e necessar( to "ul"ill t!eir purpose. Even in t!e international sp!ere, t!e creation o" t!e &ore "a&iliar trut! co&&issions !as #eendone #( an act o" le%islature.

Neit!er can t!e creation o" t!e Co&&ission #e =usti"ied as an exercise o" t!e dele%ated le%islative aut!orit( o" t!e President toreor%ani5e !is o""ice and t!e executive depart&ent under Section *1, C!apter 1, itle III, 2oo$ III o" t!e 6d&inistrative Code o"1@9. !e acts o" reor%ani5ation aut!ori5ed under said provision are li&ited to t!e "ollo'in%>

SEC. *1. Continuin% 6ut!orit( o" t!e President to Reor%ani5e !is O""ice. !e President, su#=ect to t!e polic( in t!e Executive O""iceand in order to ac!ieve si&plicit(, econo&( and e""icienc(, shall have continuing authority to reorganie the administrativestructure of the ffice of the (resident . or t!is purpose, !e &a( ta$e an( o" t!e "ollo'in% actions>

314 Restructure t!e internal or%ani5ation o" t!e O""ice o" t!e President Proper, includin% t!e i&&ediate O""ices, t!ePresidential Special 6ssistantsF6dvisers S(ste& and t!e Co&&on Support S(ste&, #( a#olis!in%, consolidatin% or&er%in% units t!ereo" or trans"errin% "unctions "ro& one unit to anot!erA

3)4 rans"er an( "unction under t!e O""ice o" t!e President to an( ot!er Depart&ent or 6%enc( as 'ell astransferfunctions to the ffice of the (resident from other epartments and %gencies; and

3*4 rans"er an( a%enc( under t!e O""ice o" t!e President to an( ot!er depart&ent or a%enc( as 'ell astransfer agenciesto the ffice of the (resident from other epartments or %gencies. 3E&p!ases supplied.4

!ere is not!in% in EO No. 1 t!at indicates t!at t!e Co&&ission is a part o" t!e executive depart&ent or o" t!e O""ice o" t!ePresident Proper. Indeed, it is Justice Carpio '!o su%%ests t!at t!e President &a( appoint t!e co&&issioners o" t!e P!ilippinerut! Co&&ission as presidential special assistants or advisers in order t!at t!e Co&&ission #e su#su&ed in t!e O""ice o" t!ePresident Proper and to clearl( place EO No. 1 'it!in t!e a&#it o" Section *1. o &( &ind, t!e "act t!at t!e co&&issioners are

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proposed to #e appointed as presidential advisers is an indication t!at t!e P!ilippine rut! Co&&ission 'as initiall( planned to #eindependent o" t!e President and t!e su#se<uent appoint&ent o" t!e co&&issioners as presidential advisers 'ill #e &erel( curativeo" t!e patent de"ect in t!e creation o" t!e Co&&ission #( an Executive Order, as an independent #od(.

I a%ree 'it! Justice 2rion t!at '!at EO No. 1 sou%!t to acco&plis! 'as not a &ere reor%ani5ation under t!e dele%ated le%islativeaut!orit( o" t!e President. !e creation o" t!e P!ilippine rut! Co&&ission did not involve an( restructurin% o" t!e O""ice o" t!ePresident Proper nor t!e trans"er o" an( "unction or o""ice "ro& t!e O""ice o" t!e President to t!e various executive depart&ents andvice-versa. !e Co&&ission is an entirel( ne' specie o" pu#lic o""ice '!ic!, as discussed in t!e concurrin% opinions, is not

exercisin% in!erentl( executive po'ers or "unctions #ut in"rin%in% on "unctions reserved #( t!e Constitution and our la's to ot!ero""ices.

I" t!e Co&&ission is under t!e control and supervision o" t!e President, and not an independent #od(, t!e dan%er t!at t!eCo&&ission &a( #e used "or partisan political ends is real and not i&a%ined.

or t!e sa$e o" ar%u&ent, let us accept "or t!e &o&ent t!e propositions o" our dissentin% collea%ues t!at>

3a4 !e Co&&ission is not a separate pu#lic o""ice independent o" t!e PresidentA

3#4 !e Co&&ission is an executive #od( 3or a part o" t!e O""ice o" t!e President Proper4 t!at &a( #e created #( t!ePresident t!rou%! an executive order under Section *1A and

3c4 !e Co&&ission is &erel( an ad !oc "act-"indin% #od( intended to apprise t!e President o" "acts t!at 'ill aid !i& in t!e

"ul"ill&ent o" !is dut( to ensure t!e "ait!"ul execution o" t!e la's.

I" t!e "ore%oin% state&ents are true, t!en '!at EO No. 1 created is a #od( under t!e control and supervision o" t!e President. In"act, i" t!e co&&issioners are to #e considered special advisers to t!e President, t!e Co&&ission 'ould #e a #od( t!at serves att!e pleasure o" t!e President. Proponents '!o support t!e creation o" t!e Co&&ission in t!e &anner provided "or under EO No. 1s!ould drop all ar%u&ents re%ardin% t!e purported independence and o#=ectivit( o" t!e proceedin%s #e"ore it.

Indeed, EO No. 1 itsel" is replete 'it! provisions t!at indicate t!at t!e existence and operations o" t!e Co&&ission 'ill #edependent on t!e O""ice o" t!e President. Its #ud%et s!all #e provided #( t!e O""ice o" t!e President8 and t!ere"ore it !as no "iscalautono&(. !e reports o" t!e Co&&ission s!all #e pu#lis!ed upon t!e directive o" t!e President.9 urt!er, i" 'e "ollo' t!e le%alpre&ises o" our dissentin% collea%ues to t!eir lo%ical conclusion, t!en t!e Co&&ission as a #od( created #( executive order &a(li$e'ise #e a#olis!ed 3i" it is part o" t!e Presidential Special 6ssistantsF6dvisers S(ste& o" t!e O""ice o" t!e President Proper4 orrestructured #( executive order. EO No. 1 &a( #e a&ended, &odi"ied, and repealed all #( executive order. ;ore i&portantl(, i" t!eCo&&ission is su#=ect to t!e po'er o" control o" t!e President, !e &a( reverse, revise or &odi"( t!e actions o" t!e Co&&ission oreven su#stitute !is o'n decision "or t!at o" t!e Co&&ission.

!et!er #( na&e or #( nature, t!e P!ilippine rut! Co&&ission cannot #e dee&ed politicall( /neutral/ so as to assure a co&pletel(i&partial conduct o" its purported "act-"indin% &andate. I "urt!er concur 'it! C!ie" Justice Corona t!at atte&pts to /su%ar coat/ t!eP!ilippine rut! Co&&issionBs "unctions as /!ar&less/ deserve no credence.

!e purported "unctions to #e served #( t!e Co&&ission, as t!e concurrin% opinions vividl( illustrate, 'ill su#vert t!e "unctions o"t!e O&#uds&an and t!e constitutional and statutor( developed cri&inal =ustice s(ste&.

irst, it is apparent on t!e "ace o" EO No. 1 t!at in %eneral /it is pri&aril( tas$ed to conduct a t!orou%! "act-"indin% investi%ation o"reported cases o" %ra"t and corruption Ko" suc! scale and &a%nitude t!at s!oc$ and o""end t!e &oral and et!ical sensi#ilities o" t!epeopleG, involvin% t!ird level pu#lic o""icers and !i%!er, t!eir co-principals, acco&plices and accessories "ro& t!e private sector, i"an(, durin% t!e previous ad&inistration./@ I a%ree 'it! t!e C!ie" JusticeBs proposition t!at t!ere is no la' aut!ori5in% t!e President tocreate a #od( to investi%ate persons outside t!e executive depart&ent in relation to %ra"t and corruption cases, concurrentl( 'it! t!eO""ice o" t!e O&#uds&an '!ic! !as suc! express le%al aut!orit(. Indeed, even in =urisprudence, t!e instances '!en t!e po'er o"t!e President to investi%ate and create ad hoc co&&ittees "or t!at purpose 'ere up!eld !ave #een usuall( related to !is po'er o"

control and discipline over !is su#ordinates or !is po'er o" supervision over local %overn&ent units.

In 0an5on v. Ma(anan, a case involvin% t!e investi%ation o" a &a(or, 'e !eld t!at t!e po'er o" t!e President to re&ove an( o""icialin t!e %overn&ent service under t!e Revised 6d&inistrative Code and !is constitutional po'er o" supervision over local%overn&ents 'ere t!e #ases "or t!e po'er o" t!e President to order an investi%ation o" an( action or t!e conduct o" an( person int!e %overn&ent service, and to desi%nate t!e o""icial co&&ittee, or person #( '!o& suc! investi%ation s!all #e conducted.

In Larin v. Executive Secretar(,1 '!ere t!e petitioner su#=ect o" t!e investi%ation 'as an 6ssistant Co&&issioner in t!e 2ureau o"Internal Revenue, 'e !eld t!at>















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2ein% a presidential appointee, !e co&es under t!e direct disciplinin% aut!orit( o" t!e President. !is is in line 'it! t!e 'ell settledprinciple t!at t!e /po'er to re&ove is in!erent in t!e po'er to appoint/ con"erred to t!e President #( Section 18, 6rticle 7II o" t!eConstitution. !us, it is inelucta#l( clear t!at ;e&orandu& Order No. 18+, '!ic! created a co&&ittee to investi%ate t!ead&inistrative c!ar%e a%ainst petitioner, 'as issued pursuant to t!e po'er o" re&oval o" t!e President. x x x.11 3E&p!asessupplied.4

In a si&ilar vein, i t 'as ruled in Joson v. Executive Secretar(,1) t!at>

!e po'er o" t!e President over ad&inistrative disciplinar( cases a%ainst elective local o""icials is derived "ro& !is po'er o" %eneralsupervision over local %overn&ents. Section +, 6rticle ? o" t!e 1@9 Constitution provides>

Sec. +. !e President o" t!e P!ilippines s!all exercise %eneral supervision over local %overn&ents. Provinces 'it! respect toco&ponent cities and &unicipalities, and cities and &unicipalities 'it! respect to co&ponent #aran%a(s s!all ensure t!at t!e acts o"t!eir co&ponent units are 'it!in t!e scope o" t!eir prescri#ed po'ers and "unctions./

!e po'er o" supervision &eans /overseein% or t!e aut!orit( o" an o""icer to see t!at t!e su#ordinate o""icers per"or& t!eir duties. I"t!e su#ordinate o""icers "ail or ne%lect to "ul"ill t!eir duties, t!e o""icial &a( ta$e suc! action or step as prescri#ed #( la' to &a$et!e& per"or& t!eir duties. !e Presidents po'er o" %eneral supervision &eans no &ore t!an t!e po'er o" ensurin% t!at la's are"ait!"ull( executed, or t!at su#ordinate o""icers act 'it!in t!e la'. Supervision is not inco&pati#le 'it! discipline. 6nd t!e po'er todiscipline and ensure t!at t!e la's #e "ait!"ull( executed &ust #e construed to aut!ori5e t!e President to order an investi%ation o"t!e act or conduct o" local o""icials '!en in !is opinion t!e %ood o" t!e pu#lic service so re<uires.1* 3E&p!ases ours.4

Still on t!e sa&e point, Depart&ent o" :ealt! v. Ca&posano1+

li$e'ise discussed t!at>

!e C!ie" ExecutiveBs po'er to create t!e 6d :oc Investi%atin% Co&&ittee cannot #e dou#ted. :avin% #een constitutionall( %ranted"ull control o" t!e Executive Depart&ent, to '!ic! respondents #elon%, t!e President !as t!e o#li%ation to ensure t!at all executiveo""icials and e&plo(ees "ait!"ull( co&pl( 'it! t!e la'. it! 6O )@ as &andate, t!e le%alit( o" t!e investi%ation is sustained. Suc!validit( is not a""ected #( t!e "act t!at t!e investi%atin% tea& and t!e PC60C !ad t!e sa&e co&position, or t!at t!e "or&er used t!eo""ices and "acilities o" t!e latter in conductin% t!e in<uir(.1 3E&p!ases supplied.4

Second, t!e "unctions o" t!e Co&&ission, alt!ou%! ostensi#l( onl( reco&&endator(, are #asicall( prosecutorial in nature and notcon"ined to o#=ective "act "indin%. EO No. 1 e&po'ers t!e Co&&ission to, a&on% ot!ers>

SECION ). x x x.

x x x x

3#4 Collect, receive, revie' and evaluate evidence related to or re%ardin% t!e cases o" lar%e scale corruption '!ic! it !as c!osen toinvesti%ate, and to t!is end re<uire an( a%enc(, o""icial or e&plo(ee o" t!e Executive 2ranc!, includin% %overn&ent-o'ned orcontrolled corporations, to produce docu&ents, #oo$s, records and ot!er papersA

x x x x

3%4 urn over "ro& ti&e to ti&e, "or expeditious prosecution to t!e appropriate prosecutorial aut!orities, #( &eans o" a specialor interim report and reco&&endation, all evidence on corruption o" pu#lic o""icers and e&plo(ees and t!eir private sector co-principals, acco&plices or accessories, i" an(, '!en in t!e course o" its investi%ation t!e Co&&ission "inds t!at t!ere is reasona#le%round to #elieve t!at t!e( are lia#le "or %ra"t and corruption under pertinent applica#le la's. 3E&p!asis ours.4

I a%ree 'it! Justice Pere5 t!at t!e a"ore&entioned "unctions run counter to t!e ver( purpose "or t!e creation o" t!e O""ice o" t!eO&#uds&an, to constitutionali5e a politicall( independent o""ice responsi#le "or pu#lic accounta#ilit( as a response to t!e ne%ativeexperience 'it! presidential co&&issions. :is discussion on t!e constitutional !istor( o" t!e O""ice o" t!e O&#uds&an and t!e

=urisprudential #ases "or its pri&ar( =urisdiction over cases co%ni5a#le #( t!e Sandi%an#a(an 3i.e., speci"ic o""enses, includin% %ra"tand corruption, co&&itted #( pu#lic o""icials as provided "or in Presidential Decree No. 188, as a&ended4 is apropos indeed.

I li$e'ise "ind co&pellin% Justice 2rionBs presentation re%ardin% t!e Co&&issionBs /trut!-tellin%/ "unctionBs potential i&plications ondue process ri%!ts and t!e ri%!t to a "air trial and t!e li$eli!ood o" duplication o", or inter"erence 'it!, t!e investi%ator( orad=udicator( "unctions o" t!e O&#uds&an and t!e courts. I need not repeat Justice 2rionBs co&pre!ensive and lucid discussion!ere. :o'ever, I do "ind it "ittin% to ec!o !ere "or&er C!ie" Justice Claudio ee!an$ee, Sr.Bs dissentin% opinion in Evan%elista v.Jarencio,18 t!e o"t-cited aut!orit( "or t!e PresidentBs po'er to investi%ate, '!ere !e stated t!at>




















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!e t!rust o" all t!is is t!at t!e State 'it! its over'!el&in% and vast po'ers and resources can and &ust "erret out and investi%ate'ron%doin%, %ra"t and corruption and at t!e sa&e ti&e respect t!e constitutional %uarantees o" t!e individuals ri%!t to privac(,silence and due process +- +6+ eHcrm+o and unreasona#le searc! and sei5ure. x x x.19 3E&p!ases ours.4

!e constitutional &andate "or pu#lic accounta#ilit( and t!e present ad&inistrationBs no#le purpose to cur# %ra"t and corruptionsi&pl( cannot =usti"( triviali5in% individual ri%!ts e<uall( protected under t!e Constitution. !is Court cannot place its sta&p o"approval on executive action t!at is constitutionall( a#!orrent even i" "or a lauda#le o#=ective, and even i" done #( a President '!o!as t!e support o" popular opinion on !is side. or t!e decisions o" t!e Court to !ave value as precedent, 'e cannot decide cases

on t!e #asis o" personalities nor on so&et!in% as "ic$le and "leetin% as pu#lic senti&ent. It is 'ort! repeatin% t!at our dut( as aCourt is to up!old t!e rule o" la' and not t!e rule o" &en.

Concludin% State&ent

Section 1, 6rticle 7III o" t!e 1@9 Constitution provides>

Section 1. !e =udicial po'er s!all #e vested in one Supre&e Court and in suc! lo'er courts as &a( #e esta#lis!ed #( la'.

Judicial po'er includes t!e dut( o" t!e courts o" =ustice to settle actual controversies involvin% ri%!ts '!ic! are le%all( de&anda#leand en"orcea#le, and to deter&ine '!et!er or not t!ere !as #een a %rave a#use o" discretion a&ountin% to lac$ or excess o"

=urisdiction on t!e part o" an( #ranc! or instru&entalit( o" t!e 0overn&ent.

ndenia#l(, "ro& t!e "ore%oin%, =udicial revie' is not onl( a po'er #ut a constitutional dut( o" t!e courts. !e "ra&ers o" our

Constitution "ound an i&perative need to provide "or an expanded scope o" revie' in "avor o" t!e /non-political/ courts as a vitalc!ec$ a%ainst possi#le a#uses #( t!e political #ranc!es o" %overn&ent. or t!is reason, I cannot su#scri#e to Justice ;aria LourdesSerenoBs vie' t!at t!e CourtBs exercise o" its revie' po'er in t!is instance is tanta&ount to supplantin% t!e 'ill o" t!e electorate. 6p!ilosop!ical vie' t!at t!e exercise o" suc! po'er #( t!e Judiciar( &a( "ro& a certain perspective #e /unde&ocratic/ is not le%alaut!orit( "or t!is Court to a#dicate its role and dut( under t!e Constitution. It also i%nores t!e "act t!at it is t!e people #( t!erati"ication o" t!e Constitution '!o !as %iven t!is po'er and dut( o" revie' to t!e Judiciar(.

!e insinuations t!at t!e &e&#ers o" t!e &a=orit( are i&pelled #( i&proper &otives, #ein% counter&a=oritarian and allo'in% %ra"tand corruption to proli"erate 'it! i&punit( are utterl( #aseless. Not onl( are t!ese sort o" ad !o&ine& attac$s and populist appealsto e&otion "allacious, t!e( are essentiall( non-le%al ar%u&ents t!at !ave no place in a de#ate re%ardin% constitutionalit(. 6t t!e endo" t!e da(, Justices o" t!is Court &ust vote accordin% to t!eir conscience and t!eir !onest #elie" o" '!at t!e la' is in a particularcase. !at is '!at %ives us coura%e to stand #( our actions even in t!e "ace o" t!e !ars!est criticis&. !ose '!o read our opinions,i" t!e( are trul( discernin%, 'ill #e a#le to deter&ine i" 'e voted on points o" la' and i" an( one o" us 'as &erel( panderin% to t!eappointin% po'er.

Needless to sa(, t!is Court 'ill "ull( support t!e present ad&inistrationBs initiatives on transparenc( and accounta#ilit( i"i&ple&ented 'it!in t!e #ounds o" t!e Constitution and t!e la's t!at t!e President pro"esses !e 'is!es to "ait!"ull( execute.n"ortunatel(, in t!is instance, EO No. 1 "ails t!is ulti&ate le%al lit&us test.

T!R!SITA &. L!ONARDOHD! CASTRO 6ssociate Justice

$oooe

1 ro& t!e 'e#site o" t!e International Center "or ransitional Justice, !ttp>FFict=.or%FenFt=F1*@.!t&l, accessed on Dece&#er8, )1.

)

Rule-o"-La' ools "or Post-Con"lict States> rut! Co&&issions, O""ice o" t!e nited Nations :i%! Co&&issioner "or:u&an Ri%!ts, nited Nations, Ne' or$ and 0eneva 3)84 at p. 8.

* Section 1, EO No. 1.

+ SN, Septe&#er )@, )1, pp. )-)1, cited in t!e Separate Opinion o" Justice 2rion.

o cite a "e' exa&ples> !e Sout! 6"rican /rut! and Reconciliation Co&&ission/ 'as esta#lis!ed under t!e Pro&otiono" National nit( and Reconciliation 6ct *+ o" 1 passed #( t!at countr(Bs parlia&ent. !e /National nit( andReconciliation Co&&ission/ in R'anda 'as o""iciall( set up in 1 #( an act o" t!e ransitional National 6sse&#l(.




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8 Section 11 o" EO No. 1.

9 Section 1 o" EO No. 1.

@ Section ), EO No. 1 'it! p!rase in #rac$ets supplied "ro& Section 1.

1+ P!il. +@* 31@4.

1 *+ P!il. 8) 3194.

11 Id. at 9+.

1) *) P!il. @@@ 31@4.

1* Id. at 1*-1+.

1+ +8 P!il. @@8 3)4.

1 Id. at @8-@9.

18 18-6 P!il. 9* 3194.

19 Id. at 998.


S!ARAT! CONCURRING OINION

!RALTA, J.:

On Jul( *, )1, President 2eni%no Si&eon C. 6<uino III issued Executive Order 3E.O.4 No. 1 creatin% t!e P!ilippine rut!Co&&ission o" )1 3rut! Co&&ission4, '!ic! is /pri&aril( tas$ed to conduct a t!orou%! "act-"indin% investi%ation o" reportedcases o" %ra"t and corruption x x x involvin% t!ird level pu#lic o""icers and !i%!er, t!eir co-principals, acco&plices and accessories"ro& t!e private sector, i" an(, durin% t!e previous ad&inistration and t!erea"ter su#&it its "indin%s and reco&&endations to t!ePresident, Con%ress and t!e O&#uds&an./

Petitioners "iled t!eir respective petitions <uestionin% t!e constitutionalit( o" E.O. No. 1. In 0.R. No. 1**8, petitioners, as&e&#ers o" t!e :ouse o" Representatives, !ave le%al standin% to i&pu%n t!e validit( o" E.O. No. 1, since t!e( clai& t!at E.O. No. 1in"rin%es upon t!eir prero%atives as le%islators.1 In 0.R. No. 1)*, petitioner, '!o "iled !is petition as a taxpa(er, &a( also #eaccorded standin% to sue, considerin% t!at t!e issues raised are o" transcendental i&portance to t!e pu#lic.) !e people a'ait t!eoutco&e o" t!e PresidentBs e""ort to i&ple&ent !is pled%e to "ind out t!e trut! and provide closure to t!e reported cases o" %ra"t andcorruption durin% t!e previous ad&inistration. !e constitutional issues raised #( petitioners see$ t!e deter&ination o" '!et!er ornot t!e creation o" t!e rut! Co&&ission is a valid exercise #( t!e President o" !is executive po'er.

Petitioners contend t!at E.O. No. 1 is unconstitutional, #ecause onl( Con%ress &a( create a pu#lic o""ice, pursuant to Section 1, 6rticle 7I o" t!e Constitution.*

Respondents, t!rou%! t!e O""ice o" t!e Solicitor 0eneral 3OS04, counter t!at t!e issuance o" E.O. No. 1 is &ainl( supported #(Section 19, 6rticle 7II o" t!e Constitution,+ Section *1, itle III, 2oo$ III o" E.O. No. )), and Presidential Decree 3P.D.4 No. 1+18, asa&ended #( P.D. No. 199).

uoted in E.O. No. 1 as t!e le%al #asis "or its creation is Section *1, itle III, 2oo$ III o" E.O. No. )), ot!er'ise $no'n ast!e 'evised %dministrative Code of <?G@ , '!ic! provides>

SEC. *1. Continuin% 6ut!orit( o" t!e President to Reor%ani5e !is O""ice. !e President, su#=ect to t!e polic( in t!e ExecutiveO""ice and in order to ac!ieve si&plicit(, econo&( and e""icienc(, s!all !ave continuin% aut!orit( to reor%ani5e t!e ad&inistrativestructure o" t!e O""ice o" t!e President. or t!is purpose, !e &a( ta$e an( o" t!e "ollo'in% actions>

















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314 Restructure t!e internal or%ani5ation o" t!e O""ice o" t!e President Proper, includin% t!e i&&ediate O""ices, t!ePresidential Special 6ssistantsF6dvisers S(ste& and t!e Co&&on Sta"" Support S(ste&, #( a#olis!in%, consolidatin% or&er%in% units t!ereo" or trans"errin% "unctions "ro& one unit to anot!erA


3*4 rans"er an( a%enc( under t!e O""ice o" t!e President to an( ot!er depart&ent or a%enc( as 'ell as trans"er a%enciesto t!e O""ice o" t!e President "ro& ot!er depart&ents and a%encies.

In )agaoisan v. 9ational obacco %dministration, t!e Court !eld t!at t!e "irst sentence o" t!e la' is an express %rant to t!ePresident o" a continuin% aut!orit( to reor%ani5e t!e ad&inistrative structure o" t!e O""ice o" t!e President. Section *1314 o"Executive Order No. )) speci"icall( re"ers to t!e PresidentBs po'er to restructure t!e internal or%ani5ation o" t!e O""ice o" t!ePresident Proper, #( a#olis!in%, consolidatin% or &er%in% units t!ereo" or trans"errin% "unctions "ro& one unit to anot!er.8 Section*13)4 and 3*4 concern executive o""ices outside t!e O""ice o" t!e President Proper allo'in% t!e President to trans"er an( "unctionunder t!e O""ice o" t!e President to an( ot!er depart&ent or a%enc( and vice-versa, and t!e trans"er o" an( a%enc( under t!e O""iceo" t!e President to an( ot!er depart&ent or a%enc( and vice-versa.9

!us, t!e reor%ani5ation in Section *1 involves a#olis!in%, consolidatin% or &er%in% units in t!e O""ice o" t!e President Proper ortrans"errin% "unctions "ro& one unit to anot!er in t!e O""ice o" t!e President Proper, and t!e trans"er o" an( "unction or an( a%enc(under t!e O""ice o" t!e President to an( ot!er depart&ent or a%enc( and vice-versa. No'!ere is it stated t!at t!e President cancreate an o""ice li$e t!e rut! Co&&ission, '!ic! does not result "ro& an( reor%ani5ation under Section *1. :ence, t!e said sectioncannot #e used to =usti"( t!e creation o" t!e rut! Co&&ission.

;oreover, in its Co&&ent, t!e OS0 stated t!at one o" t!e #ases "or t!e creation o" E.O. No. 1 is P.D. No. 1+18, as a&ended #(P.D. No. 199), '!ic! a&end&ent 'as enacted #( President erdinand E. ;arcos on Januar( 1, 1@1.

P.D. No. 1+18, as a&ended, is inapplica#le as #asis in t!e creation o" t!e rut! Co&&ission, since it 'as intended #( Presidenterdinand E. ;arcos to pro&ote e""icienc( and "lexi#ilit( in t!e or%ani5ation o" t!e national %overn&ent to stren%t!en t!e%overn&ent #ureaucrac( '!en t!e %overn&ent 'as in t!e transition "ro& presidential to t!e parlia&entar( "or& o" %overn&ent. !isis evident in t!e prea&#le o" P.D. No. 1+18,@ '!ic! states>

:ERE6S, t!e transition to'ard t!e parlia&entar( "or& o" %overn&ent 'ill necessitate "lexi#ilit( in t!e or%ani5ation o" t!e national%overn&entA x x x

!e OS0 ad&itted durin% t!e oral ar%u&ent1 t!at t!e 1@9 Constitution ended t!e po'er o" t!e President to reor%ani5e t!e national%overn&ent. It is noted t!at President erdinand E. ;arcos exercised le%islative po'er concurrentl( 'it! t!e interi& 2atasan%

Pa&#ansa 31984 and, su#se<uentl(, 'it! t!e re%ular 2atasan% Pa&#ansa 31@+4.11

6"ter t!e e#ruar( 1@8 revolution, PresidentCora5on C. 6<uino assu&ed revolutionar( le%islative po'er, and issued Procla&ation No. *, t!e Provisional reedo& Constitution.Section *, 6rticle I o" Procla&ation No. * a#olis!ed t!e 2atasan% Pa&#ansa, '!ile Section 1, 6rticle II o" t!e said Procla&ationvested le%islative po'er in t!e President until a le%islature 'ould #e elected and convened under a ne' Constitution. !us, Section8, 6rticle ?7III 3ransitor( Provisions4 o" t!e 1@9 Constitution provides t!at /KtG!e incu&#ent President 3President Cora5on 6<uino4s!all continue to exercise le%islative po'ers until t!e "irst Con%ress is convened./1)

In vie' o" t!e "ore%oin%, t!e decision in Larin v. Executive Secretar(1* inso"ar as P.D. No. 1+18, as a&ended #( P.D. No. 199), iscited as a la' %rantin% t!e President t!e po'er to reor%ani5e, needs to #e re-exa&ined.

6ssu&in% t!at P.D. No. 1+18, as a&ended, is still a valid la', it cannot #e t!e #asis o" t!e creation o" t!e rut! Co&&ission,#ecause all t!e cases, "ro& Larin v. Executive Secretar(A1+ 2u$lod n% Ma'anin% EII2 v. a&oraA1Secretar( o" t!e Depart&ent o"ransportation and Co&&unications v. ;a#alotA18 2a%aoisan v. National o#acco 6d&inistrationA19 Depart&ent o" Environ&ent andNatural Resources v. DENR Re%ion 1) E&plo(eesA1@ ondo ;edical Center E&plo(ees 6ssociation v. Court o" 6ppealsA1 ;alariaE&plo(ees and or$ers 6ssociation o" t!e P!ilippines, Inc. 3;E6P4 v. Ro&ulo) to 2anda v. Er&ita,)1 '!ic! cited P.D. No. 1+18,as a&ended, as a #asis to reor%ani5e, involved reor%ani5ation or strea&linin% o" an a%enc( o" t!e Executive Depart&ent. :o'ever,

t!e rut! Co&&ission 'as not created "or strea&linin% purposes.

!e purpose o" reor%ani5ation under P.D. No. 1+18, as a&ended #( P.D. No. 199), is to /pro&ote si&plicit(, econo&( ande""icienc( in t!e %overn&ent to ena#le it to pursue pro%ra&s consistent 'it! national %oals "or accelerated social and econo&icdevelop&ent, and to i&prove upon t!e services o" t!e %overn&ent in t!e transaction o" t!e pu#lic #usiness./

!e creation o" t!e rut! Co&&ission, !o'ever, is not to pro&ote si&plicit(, econo&( and e""icienc( in t!e %overn&ent. !e rut!Co&&ission is pri&aril( tas$ed to conduct "act-"indin% investi%ation o" reported cases o" %ra"t and corruption involvin% t!ird levelpu#lic o""icers and !i%!er, t!eir co-principals, acco&plices and accessories "ro& t!e private sector, i" an(, durin% t!e previousad&inistration o" President 0loria ;acapa%al-6rro(o, '!ic! separate investi%ative #od(, as stated in t!e prea&#le, /'ill reco&&end





















































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t!e prosecution o" t!e o""enders and secure =ustice "or all./ It is, in part, t!e i&ple&entation o" t!e pled%e o" President 2eni%no 6<uino, Jr. durin% t!e last election t!at i" elected, !e 'ould end corruption and t!e evil it #reeds.

In its ;e&orandu&, t!e OS0 =usti"ies t!e po'er o" t!e President to create t!e rut! Co&&ission #ased on !is aut!orit( to create ad!oc "act-"indin% co&&ittees or o""ices 'it!in t!e O""ice o" t!e President, '!ic! aut!orit( is descri#ed as an ad=unct o" !is plenar(executive po'er under Section 1 and !is po'er o" control under Section 19, #ot! o" 6rticle 7II o" t!e Constitution.)) It cited t!e caseo" Depart&ent o" :ealt! v. Ca&posano,)* '!ic! !eld>

!e C!ie" ExecutiveBs po'er to create t!e 6d :oc Investi%atin% Co&&ittee cannot #e dou#ted. :avin% #een constitutionall( %ranted"ull control o" t!e Executive Depart&ent, to '!ic! respondents #elon%, t!e President !as t!e o#li%ation to ensure t!at all executiveo""icials and e&plo(ees "ait!"ull( co&pl( 'it! t!e la'. it! 6O )@ as &andate, t!e le%alit( o" t!e investi%ation is sustained. Suc!validit( is not a""ected #( t!e "act t!at t!e investi%atin% tea& and t!e PC60C !ad t!e sa&e co&position, or t!at t!e "or&er used t!eo""ices and "acilities o" t!e latter in conductin% t!e in<uir(.

o clari"(, t!e po'er o" control is /t!e po'er o" an o""icer to alter or &odi"( or nulli"( or set aside '!at a su#ordinate o""icer !ad donein t!e per"or&ance o" !is duties and to su#stitute t!e =ud%&ent o" t!e "or&er "or t!at o" t!e latterA/)+ !ence, it cannot #e t!e #asis o"creatin% t!e rut! Co&&ission.

!e ponencia =usti"ies t!e creation o" t!e rut! Co&&ission #ased on t!e PresidentBs dut( to ensure t!at t!e la's #e "ait!"ull(executed under Section 19, 6rticle 7II o" t!e Constitution, t!us>

Sec. 19. !e President s!all !ave control o" all executive depart&ents, #ureaus and o""ices. :e s!all ensure t!at t!e la's #e

"ait!"ull( executed.)

6ccordin% to t!e ponencia, to ascertain i" la's are "ait!"ull( executed, t!e President !as t!e po'er to create ad !oc investi%atin%co&&ittees, '!ic! po'er !as #een up!eld in Depart&ent o" :ealt! v. Ca&posano.)8 In t!e said case, so&e concerned e&plo(eeso" t!e Depart&ent o" :ealt! 3DO:4-National Capital Re%ion 3NCR4 "iled a co&plaint #e"ore t!e DO: Resident a%ainst certaino""icers o" t!e DO: arisin% "ro& alle%ed ano&alous purc!ase o" &edicines. !e Resident O&#uds&an su#&itted an investi%ationreport to t!e Secretar( o" :ealt! reco&&endin% t!e "ilin% o" a "or&al ad&inistrative c!ar%e o" Dis!onest( and 0rave ;isconducta%ainst t!e respondents. Su#se<uentl(, t!e Secretar( o" :ealt! "iled a "or&al c!ar%e a%ainst t!e respondents "or 0rave ;isconduct,Dis!onest(, and 7iolation o" Repu#lic 6ct No. *1. !erea"ter, t!e Executive Secretar( issued 6d&inistrative Order No. )@,creatin% an ad !oc co&&ittee to investi%ate t!e ad&inistrative case "iled a%ainst t!e DO:-NCR e&plo(ees. !e said 6d&inistrativeOrder 'as indorsed to t!e Presidential Co&&ission 6%ainst 0ra"t and Corruption 3PC60C4, '!ic! "ound t!e respondents %uilt( asc!ar%ed and reco&&ended t!eir dis&issal "ro& t!e %overn&ent. :o'ever, t!e Court overturned t!e dis&issal o" respondents #(t!e Secretar( o" DO:, #ecause respondents 'ere denied due process, #ut i t declared valid t!e creation o" t!e ad !oc co&&ittee,t!us>

x x x !e investi%ation 'as aut!ori5ed under 6d&inistrative Order No. )@ dated Octo#er ), 18, '!ic! !ad created an 6d :oc

Co&&ittee to loo$ into t!e ad&inistrative c!ar%es "iled a%ainst Director Rosalinda . ;a=arais, Priscilla 0. Ca&posano, :oracio D.Ca#rera, I&elda . 6%ustin and Enri<ue L. Pere5.

!e Investi%atin% Co&&ittee 'as co&posed o" all t!e &e&#ers o" t!e PC60C> C!air&an Eu"e&io C. Do&in%o, Co&&issionerDario C. Ra&a and Co&&issioner Jai&e L. 0uerrero. !e Co&&ittee 'as directed #( 6O )@ to /"ollo' t!e procedure prescri#edunder Section *@ to + o" t!e Civil Service La' 3PD @94, as a&ended./ It 'as tas$ed to /"or'ard to t!e Disciplinin% 6ut!orit( t!eentire records o" t!e case, to%et!er 'it! its "indin%s and reco&&endations, as 'ell as t!e dra"t decision "or t!e approval o" t!ePresident./

!e C!ie" ExecutiveBs po'er to create t!e 6d :oc Investi%atin% Co&&ittee cannot #e dou#ted. :avin% #een constitutionall( %ranted"ull control o" t!e Executive Depart&ent, to '!ic! respondents #elon%, t!e President !as t!e o#li%ation to ensure t!at all executiveo""icials and e&plo(ees "ait!"ull( co&pl( 'it! t!e la'. it! 6O )@ as &andate, t!e le%alit( o" t!e investi%ation is sustained. Suc!validit( is not a""ected #( t!e "act t!at t!e investi%atin% tea& and t!e PC60C !ad t!e sa&e co&position, or t!at t!e "or&er used t!eo""ices and "acilities o" t!e latter in conductin% t!e in<uir(.)9

!e ponencia stressed t!at t!e purpose o" allo'in% ad !oc investi%atin% #odies to exist is to allo' in<uir( into &atters '!ic! t!ePresident is entitled to $no' so t!at !e can #e properl( advised and %uided in t!e per"or&ance o" !is duties relative to t!e executionand en"orce&ent o" t!e la's o" t!e land. !e ponencia stated t!at t!is 'as also t!e o#=ective o" investi%ative #odies created in t!epast li$e t!e PC6C, PC6PE, P6R0O, t!e eliciano Co&&ission, t!e ;elo Co&&ission and t!e enarosa Co&&ission. :ence, t!eponencia !eld t!at t!e PresidentBs po'er to create investi%ative #odies cannot #e denied.

6l#eit t!e President !as t!e po'er to create ad !oc co&&ittees to investi%ate or in<uire into &atters "or t!e %uidance o" t!ePresident to ensure t!at t!e la's #e "ait!"ull( executed, I a& o" t!e vie' t!at t!e rut! Co&&ission 'as not created in t!e nature o"t!e a"ore&entioned ad !oc investi%atin%F"act-"indin% #odies. !e rut! Co&&ission 'as created &ore in t!e nature o" a pu#lico""ice.


















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2ased on t!e creation o" ad !oc investi%atin% #odies in Depart&ent o" :ealt! v. Ca&posano and Presidential 6d :oc act-indin%Co&&ittee on 2e!est Loans v. Desierto,)@ t!e &e&#ers o" an ad !oc investi%ative #od( are !eads and representatives o" existin%%overn&ent o""ices, dependin% on t!e nature o" t!e su#=ect &atter o" t!e investi%ation. !e ad !oc investi%atin% #od(Bs "unctions arepri&aril( "act-"indin%Finvesti%ative and reco&&endator( in nature.)

In t!is case, t!e &e&#ers o" t!e rut! Co&&ission are not o""icials "ro& existin% %overn&ent o""ices. ;oreover, t!e rut!Co&&ission !as #een %ranted po'ers o" an independent o""ice as "ollo's>

1. En%a%e or contract t!e services o" resource persons, pro"essionals and ot!er personnel deter&ined #( it as necessar(to carr( out its &andateA*

). Pro&ul%ate its rules and re%ulations or rules o" procedure it dee&s necessar( to e""ectivel( and e""icientl( carr( out t!eo#=ectives o" t!is Executive Order and to ensure t!e orderl( conduct o" its investi%ations, proceedin%s and !earin%s,includin% t!e presentation o" evidence.*1

*. !e rut! Co&&ission s!all !ave t!e po'er to en%a%e t!e services o" experts as consultants or advisers as it &a(dee& necessar( to acco&plis! its &ission.*)

In addition, t!e rut! Co&&ission !as coercive po'ers suc! as t!e po'er to su#poena 'itnesses.** 6n( %overn&ent o""icial orpersonnel '!o, 'it!out la'"ul excuse, "ails to appear upon su#poena issued #( t!e Co&&ission or '!o, appearin% #e"ore t!eCo&&ission re"uses to ta$e oat! or a""ir&ation, %ive testi&on( or produce docu&ents "or inspection, '!en re<uired, s!all #e su#=ectto ad&inistrative disciplinar( action.*+ 6n( private person '!o does t!e sa&e &a( #e dealt 'it! in accordance 'it!

la'.*

6pparentl(, t!e %rant o" suc! po'ers to t!e rut! Co&&ission is no lon%er part o" t!e executive po'er o" t!e President, as itis part o" la'-&a$in%, '!ic! le%islative po'er is vested in Con%ress.*8 !ere are onl( t'o instances in t!e Constitution '!ereinCon%ress &a( dele%ate its la'-&a$in% aut!orit( to t!e President>*9

6rticle 7I, Section )*. 314 !e Con%ress, #( a vote o" t'o-t!irds o" #ot! !ouses in =oint session asse&#led, votin% separatel(, s!all!ave t!e sole po'er to declare t!e existence o" a state o" 'ar.

3)4 In ti&es o" 'ar or ot!er national e&er%enc(, t!e Con%ress &a(, #( la', aut!ori5e t!e President, "or a li&ited period and su#=ectto suc! restrictions as it &a( prescri#e, to exercise po'ers necessar( and proper to carr( out a declared national polic(. nlesssooner 'it!dra'n #( resolution o" t!e Con%ress, suc! po'ers s!all cease upon t!e next ad=ourn&ent t!ereo".

6rticle 7I, Sec. )@. 314 !e rule o" taxation s!all #e uni"or& and e<uita#le. !e Con%ress s!all evolve a pro%ressive s(ste& o"taxation.

3)4 !e Con%ress &a(, #( la', aut!ori5e t!e President to "ix 'it!in speci"ied li&its, and su#=ect to suc! li&itations and restrictions as

it &a( i&pose, tari"" rates, i&port and export <uotas, tonna%e and '!ar"a%e dues, and ot!er duties or i&posts 'it!in t!e "ra&e'or$o" t!e national develop&ent pro%ra& o" t!e %overn&ent.*@

6lt!ou%! t!e President &a( create investi%atin% #odies to !elp !i& in !is dut( to ensure t!at t!e la's are "ait!"ull( executed, !ecannot #e allo'ed to encroac! on or usurp t!e la'-&a$in% po'er o" t!e Le%islature in t!e creation o" suc! investi%ative #odies.

;oreover, t!e rut! Co&&issionBs "unction is <uestioned on t!e %round t!at it duplicates, i" not supersedes, t!e "unction o" t!eO""ice o" t!e O&#uds&an. !e OS0 avers t!at t!e O&#uds&anBs po'er to investi%ate is not exclusive, #ut is s!ared 'it! ot!ersi&ilarl( aut!ori5ed a%encies, citin% O&#uds&an v. 0alicia.*

2ased on Section ) o" E.O. No. 1, t!e po'ers and "unctions o" t!e rut! Co&&ission do not supplant t!e po'ers and "unctions o"t!e O&#uds&an.+ Nevert!eless, '!at is t!e use o" t!e rut! Co&&ission i" its po'er is &erel( reco&&endator( 6n( "indin% o"%ra"t and corruption #( t!e rut! Co&&ission is still su#=ect to evaluation #( t!e O""ice o" t!e O&#uds&an, as it is onl( t!e O""ice o"t!e O&#uds&an t!at is e&po'ered to conduct preli&inar( investi%ation, deter&ine t!e existence o" pro#a#le cause and prosecutet!e case. :ence, t!e creation o" t!e rut! Co&&ission 'ill &erel( #e a 'aste o" &one(, since it duplicates t!e "unction o" t!e O""ice

o" t!e O&#uds&an to investi%ate reported cases o" %ra"t and corruption.

urt!er, E.O. No. 1 violates t!at e<ual protection clause ens!rined in t!e Constitution. !e %uarantee o" e<ual protection o" t!e la's&eans t!at no person or class o" persons s!all #e denied t!e sa&e protection o" la's '!ic! is en=o(ed #( ot!er persons or ot!erclasses in li$e circu&stances.+1

In t!is case, investi%ation #( t!e rut! Co&&ission covers onl( t!ird level pu#lic o""icers and !i%!er, t!eir co-principals, acco&plicesand accessories "ro& t!e private sector, i" an(, durin% t!e previous ad&inistration o" "or&er President 0loria ;acapa%al-6rro(o.+)










































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reports o" 'idespread corruption in t!e previous ad&inistration cannot #e ta$en as a su#stantial distinction, since si&ilar reports!ave #een &ade in earlier ad&inistrations.

;oreover, a valid classi"ication &ust rest upon &aterial di""erences #et'een t!e persons, or activities or t!in% included andexcluded.+ Reasona#le %rounds &ust exist "or &a$in% a distinction #et'een t!ose '!o "all 'it!in t!e class and t!ose '!o donot. !ere is no su#stantial distinction cited #et'een pu#lic o""icers '!o &a( #e involved in reported cases o" %ra"t and corruptiondurin% t!e previous ad&inistration and pu#lic o""icers '!o &a( #e involved in reported cases o" %ra"t and corruption durin% priorad&inistrations in relation to t!e purpose o" endin% %ra"t and corruption. o li&it t!e investi%ation to pu#lic o""icers o" t!e previous

ad&inistration is violative o" t!e e<ual protection clause.

I vote, t!ere"ore, to 0R6N t!e petitions as Executive Order No. 1 is unconstitutional since it violates t!e e<ual protection clause o"t!e Constitution and encroac!es on t!e la'-&a$in% po'er o" Con%ress under Section 1, 6rticle 7I o" t!e Constitution.

DIOSDADO #. !RALTA 6ssociate Justice

$oooe

1 See David v. ;acapa%al-6rro(o, 0.R. No. 191*8, ;a( *, )8, +@ SCR6 18.

) Milos#a(an, Incorporated v. 0uin%ona, Jr., 0.R. No. 11**9, ;a( , 1+, )*) SCR6 11.

* Sec. 1. !e le%islative po'er s!all #e vested in t!e Con%ress o" t!e P!ilippines '!ic! s!all consist o" a Senate and a:ouse o" Representatives, except to t!e extent reserved to t!e people #( t!e provision on initiative and re"erendu&.

+ Sec. 19. !e President s!all !ave control o" all executive depart&ents, #ureaus and o""ices. :e s!all ensure t!at t!ela's #e "ait!"ull( executed.

0.R. No. 1)@+, 6u%ust , )*, +@ SCR6 **9.

8 Id. 3E&p!asis supplied.4

9 Id. 3E&p!asis supplied.4

@ Enacted on June , 19@.

E&p!asis supplied.

1 Conducted on Septe&#er )@, )1.

11 Joa<uin 0. 2ernas, S.J., !e Constitution o" t!e Repu#lic o" t!e P!ilippines, 6 Co&&entar(, 7ol. II, irst edition, pp. 9-9*, citin% Le%aspi v. ;inister o" inance, 11 SCR6 +1@. 31@)4.

1) Id. at 9*.

1* 0.R. No. 11)9+, Octo#er 18, 19, )@ SCR6 91*.

1+ Id.

1 0.R. Nos. 1+)@1-@), Jul( 1, )1, *8 SCR6 91@.

18 0.R. No. 1*@), e#ruar( )9, )), *9@ SCR6 1)@.

19 Supra note .

1@ 0.R. No. 1+9)+, 6u%ust 1, )*, + SCR6 *.







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8/13/2019 G.R. No. 192935 December 7, 2010


1 0.R. No. 189*)+, Jul( 19, )9, )9 SCR6 9+8.

) 0.R. No. 18*, Jul( *1, )9, )@ SCR6 89*.

)1 0.R. No. 1888), 6pril ), )1.

)) OS0 ;e&orandu&, p. +*.

)* +8 P!il. @@8, @8-@9 3)4.

)+ Secretar( o" t!e Depart&ent o" ransportation and Co&&unications v. ;a#alot, supra note 18.

) E&p!asis supplied.

)8 Supra note )*.

)9 Depart&ent o" :ealt! v. Ca&posano, supra note )*.

)@ 0.R. No. 1+1@+, ;arc! 1+, )@, +@ SCR6 ). In t!is case, President idel 7. Ra&os issued on Octo#er @, 1), 6d&inistrative Order No. 1* creatin% t!e Presidential 6d :oc act-indin% Co&&ittee on 2e!est Loans 3Co&&ittee4,

'!ic! reads>

:ERE6S, Sec. )@, 6rticle II o" t!e 1@9 Constitution provides t!at /Su#=ect to reasona#le conditionsprescri#ed #( la', t!e State adopts and i&ple&ents a polic( o" "ull pu#lic disclosure o" all transactions involvin%pu#lic interest/A

:ERE6S, Sec. 1, 6rticle ?I o" t!e 1@9 Constitution provides t!at /!e ri%!t o" t!e state to recoverproperties unla'"ull( ac<uired #( pu#lic o""icials or e&plo(ees, "ro& t!e& or "ro& t!eir no&inees or trans"erees,s!all not #e #arred #( prescription, lac!es or estoppel/A

:ERE6S, t!ere !ave #een alle%ations o" loans, %uarantees, or ot!er "or&s o" "inancial acco&&odation%ranted, directl( or indirectl(, #( %overn&ent o'ned and controlled #an$ or "inancial institutions, at t!e #e!est,co&&and or ur%in% #( previous %overn&ent o""icials to t!e disadvanta%e and detri&ent o" t!e P!ilippine%overn&ent and t!e ilipino peopleA

6CCORDIN0L, an /6d-:oc 6C INDIN0 CO;;IEE ON 2E:ES LO6NS/ is !ere#( created to #eco&posed o" t!e "ollo'in%>C!air&an o" t!e Presidential

Co&&ission on 0ood 0overn&ent - C!air&an

!e Solicitor 0eneral - 7ice-C!air&an

Representative "ro& t!eO""ice o" t!e Executive Secretar( - ;e&#er

Representative "ro& t!eDepart&ent o" inance - ;e&#er

Representative "ro& t!eDepart&ent o" Justice - ;e&#er

Representative "ro& t!eDevelop&ent 2an$ o" t!e P!ilippines - ;e&#er

Representative "ro& t!eP!ilippine National 2an$ - ;e&#er





















8/13/2019 G.R. No. 192935 December 7, 2010


Representative "ro& t!e 6sset Privati5ation rust - ;e&#er

0overn&ent Corporate Counsel - ;e&#er

Representative "ro& t!eP!ilippine Export and orei%n

Loan 0uarantee Corporation - ;e&#er

!e 6d :oc Co&&ittee s!all per"or& t!e "ollo'in% "unctions>

1. Inventor( all #e!est loansA identi"( t!e lenders and #orro'ers, includin% t!e principal o""icers andstoc$!olders o" t!e #orro'in% "ir&s, as 'ell as t!e persons responsi#le "or %rantin% t!e loans or '!oin"luenced t!e %rant t!ereo"A

). Identi"( t!e #orro'ers '!o 'ere %ranted /"riendl( 'aivers/, as 'ell as t!e %overn&ent o""icials '!o%ranted t!ese 'aiversA deter&ine t!e validit( o" t!ese 'aiversA

*. Deter&ine t!e courses o" action t!at t!e %overn&ent s!ould ta$e to recover t!ose loans, and toreco&&end appropriate actions to t!e O""ice o" t!e President 'it!in sixt( 384 da(s "ro& t!e date

!ereo".

!e Co&&ittee is !ere#( e&po'ered to call upon an( depart&ent, #ureau, o""ice, a%enc(, instru&entalit( orcorporation o" t!e %overn&ent, or an( o""icer or e&plo(ee t!ereo", "or suc! assistance as it &a( need in t!edisc!ar%e o" its "unction.

) See ootnote )@.

* E.O. No. 1, Section ) 3i4.

*1 E.O. No. 1, Section ) 3=4.

*) E.O. No. 1, Section .

** E.O. No. 1, Section ) 3e4.

*+ E.O. No. 1. Section .

* Id.

*8 !e Constitution, 6rticle 7I, Section 1. !e le%islative po'er s!all #e vested in t!e Con%ress o" t!e P!ilippines '!ic!s!all consist o" a Senate and a :ouse o" Representatives, except to t!e extent reserved to t!e people #( t!e provision oninitiative and re"erendu&.

*9 Joa<uin 0. 2ernas, S.J., !e Constitution o" t!e Repu#lic o" t!e P!ilippines, 6 Co&&entar(, 7ol. II, supra note 11, at9, 1+-1+1, 181.

*@ E&p!asis supplied.

* 0.R. No. 189911, Octo#er 1, )@, 8@ SCR6 *)9, **.

+ Repu#lic 6ct No. 899, Section 1. Po'ers, unctions and Duties. !e O""ice o" t!e O&#uds&an s!all !ave t!e"ollo'in% po'ers, "unctions and duties>

314 Investi%ate and prosecute on its o'n or on co&plaint #( an( person, an( act or o&ission o" an( pu#lic o""iceror e&plo(ee, o""ice or a%enc(, '!en suc! act or o&ission appears to #e ille%al, un=ust, i&proper or ine""icient. It!as pri&ar( =urisdiction over cases co%ni5a#le #( t!e Sandi%an#a(an and, in t!e exercise o" t!is pri&ar(

























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=urisdiction, it &a( ta$e over, at an( sta%e, "ro& an( investi%ator( a%enc( o" 0overn&ent, t!e investi%ation o"suc! cases x x x.

+1 City of 0anila v. (aguio, -r., 0.R. No. 11@1)9, 6pril 1), ), + SCR6 *@.

+) E.O. No. 1, Section ). Po'ers and "unctions.-- !e Co&&ission, '!ic! s!all !ave all t!e po'ers o" an investi%ative#od( under Section *9, C!apter , 2oo$ I o" t!e 6d&inistrative Code o" 1@9, is pri&aril( tas$ed to conduct a t!orou%!

"act-"indin% investi%ation o" reported cases o" %ra"t and corruption re"erred to in Section 1, involvin% t!ird level pu#lico""icers and !i%!er, t!eir co-principals, acco&plices and accessories "ro& t!e private sector, i" an(, durin% t!e previousad&inistration x x x. 3E&p!asis supplied.4

+* E&p!asis supplied.

++ ;e&orandu&, p. @.

+ Central 2an$ E&plo(ees 6ssociation, Inc. v. 2an%$o Sentral n% Pilipinas, 0.R. No. 1+@)@, Dece&#er 1, )+, ++8SCR6 ), citin% 7ictoriano v. Eli5alde Rope or$ersB nion, SCR6 +. 319+4.

+8 Cit( o" ;anila v. La%uio, Jr., 0.R. No. 11@1)9, 6pril 1), ), + SCR6 *@, *+@.

+9 Id. at *+@-*+.

+@ No. L-+9991, ;arc! 11, 19@, @) SCR6 *.

+ Peralta v. Co&&ission on Elections, supra.

Id.


S!ARAT!DISS!NTING OINION

ABAD, J.:

2rie" 2ac$%round

6s t!e opinion 'ritten "or t!e &a=orit( #( Justice Jose Catral ;endo5a sa(s, President 2eni%no Si&eon 6<uino III 3President P-No(to distin%uis! !i& "ro& "or&er President Cora5on C. 6<uino4 ca&pai%ned on a plat"or& o" /$un% 'alan% corrupt, 'alan% &a!irap./On #ein% elected President, !e issued Executive Order 1,1 creatin% t!e P!ilippine rut! Co&&ission o" )1 t!at !e tas$ed 'it! t!einvesti%ation o" reported corruption durin% t!e previous ad&inistration. !e rut! Co&&ission is to su#&it its "indin%s andreco&&endations to t!e President, t!e Con%ress, and t!e O&#uds&an.

Petitioners Louis 2irao%o, Rep. Edcel C. La%&an, Rep. Rodol"o 2. 6l#ano, Jr., Rep. Si&eon 6. Datu&anon%, and Rep. Orlando 2.ua, Sr. !ave co&e to t!is Court to c!allen%e t!e Constitutionalit( o" Executive Order 1.

!e Issues Presented

!e parties present "our issues>

1. !et!er or not petitioners !ave le%al standin% to c!allen%e t!e constitutionalit( o" Executive Order 1A

). !et!er or not Executive Order 1 usurps t!e aut!orit( o" Con%ress to create and appropriate "unds "or pu#lic o""ices,a%encies, and co&&issionsA

*. !et!er or not Executive Order 1 supplants t!e po'ers o" t!e O&#uds&an and t!e DOJA and











http://www.lawphil.net/judjuris/juri2010/dec2010/gr_192935_2010.html#fnt1a













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+. !et!er or not Executive Order 1 violates t!e e<ual protection clause in t!at it sin%les out t!e previous ad&inistration"or investi%ation.

Discussion

!e &a=orit( !olds t!at petitioners !ave standin% #e"ore t!e CourtA t!at President P-No( !as t!e po'er to create t!e rut!Co&&issionA t!at !e !as not usurped t!e po'ers o" Con%ress to create pu#lic o""ices and appropriate "unds "or t!e&A and, "inall(,

t!at t!e rut! Co&&ission can conduct investi%ation 'it!out supplantin% t!e po'ers o" t!e O&#uds&an and t!e Depart&ent o"Justice since t!e Co&&ission !as not #een vested 'it! <uasi-=udicial po'ers. I "ull( con"or& to t!ese rulin%s.

!e &a=orit( !olds, !o'ever, t!at Executive Order 1 violates t!e e<ual protection clause o" t!e Constitution. It is !ere t!at I re%ister&( dissent.

!e 1@9 Constitution provides in section 1 o" 6rticle III 3!e 2ill o" Ri%!ts4 as "ollo's>

Section 1. No person s!all #e deprived o" li"e, li#ert(, or propert( 'it!out due process o" la', nor s!all an( person #e denied t!ee<ual protection o" t!e la's.

!e idea #e!ind t!e /e<ual protection clause/ is t!at pu#lic aut!orities s!ould treat all persons or t!in%s e<uall( in ter&s o" ri%!ts%ranted to and responsi#ilities i&posed on t!e&. 6s an ele&ent o" due process, t!e e<ual protection clause #ars ar#itrar(discri&ination in "avor o" or a%ainst a class '!et!er in '!at t!e la' provides and !o' it is en"orced.

a$e t!e co&ic exa&ple o" a la' t!at re<uires &arried 'o&en to 'ear t!eir 'eddin% rin%s at all ti&es to 'arn ot!er &en not toentice 'o&en to violate t!eir &arria%e vo's. Suc! la' 'ould #e un"air and discri&inator( since &arried &en, '!o are not covered#( it, are exposed to si&ilar entice&ents "ro& 'o&en ot!er t!an t!eir 'ives.

2ut it 'ould #e =ust as un"air and discri&inator( i" people '!o !ardl( s!are an(t!in% in co&&on are %rouped to%et!er and treatedsi&ilarl(.) !e e<ual protection clause is not violated #( a la' t!at applies onl( to persons "allin% 'it!in a speci"ied class, i" suc! la'applies e<uall( to all persons 'it!in suc! class, and reasona#le %rounds exist "or &a$in% a distinction #et'een t!ose '!o "all 'it!init and t!ose '!o do not.*

or exa&ple, restaurant coo$s and 'aiters cannot co&plain o" discri&ination a%ainst an ordinance t!at re<uires t!e& #ut not ot!er'or$ers to under%o periodic &edical c!ec$-ups. Suc! c!ec$-ups are i&portant "or "ood-!andlers in t!e interest o" pu#lic !ealt! #utnot "or ordinar( o""ice cler$s. 6lso, a la' t!at %rants a 8-da( paid leave to pre%nant 'or$ers #ut not to ot!er 'or$ers, &ale or"e&ale, is not discri&inator( since "e&ale 'or$ers '!o =ust !ad t!eir #a#ies need &ore ti&e to care "or t!e latter and &a$ead=ust&ents "or %oin% #ac$ to 'or$.

:ere, t!e issue I address is '!et!er or not President P-No(Bs decision to "ocus t!e rut! Co&&issionBs investi%ation solel( on t!ereported corruption durin% t!e previous ad&inistration, i&plicitl( excludin% t!e corruption durin% t!e ad&inistrations #e"ore it,violates t!e e<ual protection clause. Since a#solute e<ualit( in treatin% &atters is not re<uired, t!e ulti&ate issue in t!is case is'!et!er or not t!e President !as reasona#le %rounds "or &a$in% a distinction #et'een corruptions co&&itted in t!e recent past andt!ose co&&itted in t!e re&ote past. 6s a rule, !is %rounds "or &a$in% a distinction 'ould #e dee&ed reasona#le i" t!e( are%er&ane or relevant to t!e purpose "or '!ic! !e created t!e rut! Co&&ission.+

6nd '!at is t!e PresidentBs purpose in creatin% t!e rut! Co&&ission !is can #e in"erred "ro& section 1 o" Executive Order 1'!ic! states t!at t!e Co&&issionBs pri&ar( "unction is to

xxx see$ and "ind t!e trut! on, and to'ard t!is end, investi%ate reports o" %ra"t and corruption o" suc! scale and &a%nitude t!ats!oc$ and o""end t!e &oral and et!ical sensi#ilities o" t!e people, co&&itted #( pu#lic o""icials and e&plo(ees, t!eir co-principals,acco&plices and accessories "ro& t!e private sector, i" an(, durin% t!e previous ad&inistration, and t!erea"ter reco&&end t!eappropriate action to #e ta$en t!ereon to ensure t!at t!e "ull &easure o" =ustice s!all #e served 'it!out "ear or "avor.

Evidentl(, t!e o#=ective t!e President sets "or t!e rut! Co&&ission is t!e uncoverin% o" t!e /trut!/ re%ardin% reported corruption int!e previous ad&inistration /to ensure t!at t!e "ull &easure o" =ustice Kevidentl( upon t!ose responsi#le "or itG is served 'it!out "earor "avor./ lti&atel(, t!e purpose o" t!e creation o" t!e rut! Co&&ission is to ensure t!at t!e corrupt o""icials o" t!e previousad&inistration are exposed and #rou%!t to =ustice.

!e &a=orit( !olds t!at pic$in% on t!e /previous ad&inistration/ and not t!e ot!ers #e"ore it &a$es t!e Co&&issionBs investi%ationan /adventure in partisan !ostilit(./ o #e "air, said t!e &a=orit(, t!e searc! "or trut! &ust include corrupt acts not onl( durin% t!eprevious ad&inistration #ut also durin% t!e ad&inistrations #e"ore it '!ere t!e /sa&e &a%nitude o" controversies and ano&alies/!as #een reported.









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!e &a=orit( points out t!at corruption in t!e previous ad&inistration and corruption in t!e ad&inistrations #e"ore it !ave nosu#stantial di""erence. 6nd '!at di""erence t!e( !ave, t!e &a=orit( adds, is not relevant to t!e purpose o" Executive Order 1, '!ic!is to uncover corrupt acts and reco&&end t!eir punis!&ent. Super"icial di""erence li$e t!e di""erence in ti&e in t!is case does not&a$e "or a valid classi"ication.

2ut ti&e di""erentiation s!ould not #e so easil( dis&issed as super"icial. !e 'orld in '!ic! people live !as t'o %reat di&ensions>t!e di&ension o" space and t!e di&ension o" ti&e. No#od( can sa( t!at t!e di""erence in ti&e #et'een t'o acts or events &a$es "ora super"icial di""erence. Suc! di""erence is t!e su#stance o" !u&an existence. 6s t!e 2i#le sa(s>

!ere is an appointed ti&e "or ever(t!in%, and a ti&e "or ever( a""air under t!e !eavens.

6 ti&e to #e #orn, and a ti&e to dieAa ti&e to plant, and a ti&e to uproot t!e plant.

6 ti&e to $ill, and a ti&e to !ealAa ti&e to tear do'n, and a ti&e to #uild.

6 ti&e to 'eep, and a ti&e to lau%!Aa ti&e to &ourn, and a ti&e to danceA

6 ti&e to scatter stones, and a ti&e to %at!er t!e&Aa ti&e to e&#race, and a ti&e to #e "ar "ro& e&#races.

6 ti&e to see$, and a ti&e to loseAa ti&e to $eep, and a ti&e to cast a'a(A

6 ti&e to rend, and a ti&e to se'Aa ti&e to #e silent and a ti&e to spea$.

6 ti&e to love, and a ti&e to !ateAa ti&e o" 'ar, and a ti&e o" peace.

3Ecclesiastes *>1-@, Ne' 6&erican 2i#le4

Reco%ni5in% t!e irreversi#ilit( o" ti&e is indispensa#le to ever( sound decision t!at people &a$e in t!eir lives ever(da(, li$e notco&#in% t!e !air t!at is no lon%er t!ere. In ti&e, parents let t!eir &arried c!ildren leave to &a$e t!eir o'n !o&es. 6lso, '!en aloved one passes a'a(, !e '!o is le"t &ust $no' t!at !e cannot #rin% #ac$ t!e ti&e t!at is %one. :e is 'ise to &ove on 'it! !is li"ea"ter so&e period o" &ournin%. o den( t!e trut! t!at t!e di""erence in ti&e &a$es "or su#stantial di""erence in !u&an lives is toden( t!e idea o" transition "ro& %ro't! to deca(, "ro& li"e to deat!, and "ro& relevant to irrelevant.

:ere t!e past presidential ad&inistrations t!e countr( !as %one t!rou%! in &odern !istor( cover a period o" 9 (ears, %oin% #ac$"ro& '!en President 0loria ;acapa%al 6rro(o ended !er ter& in )1 to t!e ti&e President ;anuel L. ue5on #e%an !is ter& in1*. !e period could even %o #ac$ 111 (ears i " t!e ad&inistration o" President E&ilio 6%uinaldo "ro& 1@ to 11 is included.2ut, so as not to co&plicate &atters, t!e latterBs ad&inistration &i%!t =ust as 'ell #e excluded "ro& t!is discussion.

It s!ould #e re&e&#ered t!at t!e ri%!t o" t!e State to recover properties unla'"ull( ac<uired #( pu#lic o""icials does notprescri#e. So, i" t!e &a=orit(Bs advice 'ere to #e literall( adopted, t!e rut! Co&&issionBs investi%ation to #e "air to all s!ould %o#ac$ 9 (ears to include t!e ad&inistrations o" "or&er Presidents 6rro(o, Estrada, Ra&os, 6<uino, ;arcos, ;acapa%al, 0arcia,;a%sa(sa(, uirino, Roxas, Os&ena, Laurel, and ue5on.

6s it !appens, President P-No( li&ited t!e rut! Co&&issionBs investi%ation to t!e (ears o" t!e previous ad&inistration. :e did notinclude t!e 88 (ears o" t!e 1) ot!er ad&inistrations #e"ore it. !e <uestion, as alread( stated, is '!et!er t!e distinction #et'een t!erecent past and t!e re&ote past &a$es "or a su#stantial di""erence t!at is relevant to t!e purpose o" Executive Order 1.

!at t!e distinction &a$es "or a su#stantial di""erence is t!e "irst point in t!is dissent.

1. !e Ri%!t to E<ual Protection

easi#ilit( o" success. i&e erodes t!e evidence o" t!e past. !e li$eli!ood o" "indin% evidence needed "or conviction di&inis!es'it! t!e &arc! o" ti&e. itnesses, li$e ever(one else, !ave s!ort &e&ories. 6nd t!e( #eco&e scarce, 'or$in% overseas, &i%ratin%,c!an%in% addresses, or =ust passin% a'a(. O""icial or private docu&ents needed as evidence are easil( over'!el&ed #( t!ede&and to "ile and $eep even &ore docu&ents %enerated #( ne' activities and transactions. !us, old docu&ents are stored a'a(in #ase&ents, %ara%es, or corridors, and eventuall( lost trac$ o", &isplaced, or si&pl( destro(ed, '!et!er intentionall( or not. In a%overn&ent t!at is notorious "or t!ro'in% a'a( or &is!andlin% old records, searc!in% "or a piece o" docu&ent a"ter ten (ears 'ould#e uncertain, tedious, lon%, and costl(.

!en t!e %overn&ent o" President ;arcos "ell in 1@8, t!e ne' %overn&ent acted s'i"tl( to se<uester suspected 'ealt!, i&pounddocu&ents #elieved to constitute evidence o" 'ron%-doin%, and intervie' 'itnesses '!o could !elp prosecute t!e ;arcoses andt!eir cronies. One 'ould t!in$ t!at t!ese actions 'ill ensure success"ul prosecution o" t!ose '!o co&&itted %ra"t and corruption in





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t!at era. et, a"ter =ust a decade, t!e prosecution !as #een &ostl( una#le to "ind t!e ri%!t docu&ents or call t!e ri%!t 'itnesses.oda(, a"ter )+ (ears, t!e "ull "orce o" %overn&ent !as "ailed to produce even one conviction.

Clearl(, it 'ould #e a 'aste o" e""ort and ti&e to scour all o" 88 (ears o" t!e ad&inistrations #e"ore t!e last, loo$in% "or evidence t!at'ould produce conviction. i&e !as #lurred t!e c!ance o" success. Li&itin% t!e rut! Co&&issionBs investi%ation to t!e (ears o"t!e previous ad&inistration %ives it t!e #est c!ance o" (ieldin% t!e re<uired proo" needed "or success"ul action a%ainst t!e o""enders.

:istoricall(, t!ere !ave #een no $no'n or outstandin% in<uiries done #( t!e Executive Depart&ent into corrupt acts o" t!e past t!at'ent #e(ond t!e ter& o" t!e i&&ediatel( precedin% ad&inistration. It &a$es sense "or President P-No( to li&it t!e investi%ation to'!at is practical and attaina#le, na&el(, t!e (ears o" t!e previous ad&inistration. :e stri$es at '!at is !ere and near. Perc!ance,!e can %et a conviction. Investi%atin% corruption in t!e past 9 (ears rat!er t!an in t!e nearest (ears, under a ne#ulous clai& o"even!andedness, is t!e $e( to "ailin% alto%et!er. It !as #een !eld t!at i" t!e la' presu&a#l( !its t!e evil '!ere it is "elt, it is not to #eovert!ro'n #ecause t!ere are ot!er instances to '!ic! it &i%!t !ave #een applied.8

Neutrali5ation o" Presidential #ias. !e Court can ta$e =udicial notice o" t!e "act t!at President P-no( openl( attac$ed t!e previousad&inistration "or its alle%ed corruption in t!e course o" !is election ca&pai%n. In a sense, !e !as developed a #ias a%ainst it.Conse<uentl(, !is creation o" t!e rut! Co&&ission, consistin% o" a "or&er C!ie" Justice, t'o "or&er 6ssociate Justices o" t!eSupre&e Court, and t'o la' pro"essors serves to neutrali5e suc! #ias and ensure "airness. !e President did not !ave to includet!e 88 (ears o" earlier ad&inistrations "or investi%ation since !e did not speci"icall( tar%et t!e& in !is election ca&pai%n.

6t an( rate, it does not &ean t!at '!en t!e President created t!e rut! Co&&ission, !e s!ut t!e door to t!e investi%ation o"corruption co&&itted durin% t!e 88 (ears #e"ore t!e previous one. 6ll existin% %overn&ent a%encies t!at are c!ar%ed 'it!uneart!in% cri&es co&&itted #( pu#lic o""icials are not precluded "ro& "ollo'in% up leads and uncoverin% corruptions co&&itted

durin% t!e earlier (ears. !ose corrupt o""icials o" t!e re&ote past !ave not %ained i&&unit( #( reason o" Executive Order 1.

;atc!in% tas$ to si5e. !e rut! Co&&ission is a colle%ial #od( o" =ust "ive &e&#ers 'it! no #ud%et or per&anent sta""s o" its o'n.It si&pl( 'ould not !ave t!e ti&e and resources "or exa&inin% !undreds i" not t!ousands o" ano&alous %overn&ent contracts t!at&a( !ave #een entered into in t!e past 9 (ears up to t!e ti&e o" President ue5on. ou cannot order "ive &en to pull a train t!at at!ousand &en cannot &ove.

0ood !ouse$eepin%. Directin% t!e investi%ation o" reported corrupt acts co&&itted durin% t!e previous ad&inistration is, as t!eSolicitor 0eneral pointed out, consistent 'it! %ood !ouse$eepin%. or exa&ple, a ne' treasurer 'ould #e prudent to ensure t!at t!e"or&er treasurer !e succeeds !as #alanced !is accounts and su#&itted !i&sel" to a closin% audit even a"ter t!e ne' treasurer !asta$en over. !is prevents t!e latter !avin% to un"airl( assu&e t!e lia#ilities o" !is predecessor "or s!orta%es in t!e cas! #ox. O"course, t!e ne' treasurer is not re<uired to loo$ "art!er into t!e accounts o" t!e earlier treasurers.

In li$e &anner, it is reasona#le "or President P-No( to cause t!e investi%ation o" t!e ano&alies reportedl( co&&itted durin% t!eprevious ad&inistration to '!ic! !e succeeded. :e !as to locate %overn&ent "unds t!at !ave not #een accounted "or. :e !as to

stanc! t!e #leedin% t!at t!e %overn&ent could #e su""erin% even no' #( reason o" ano&alous contracts t!at are still on-%oin%. Suc!is a part o" %ood !ouse$eepin%. It does not violate t!e e<ual protection clause #( its non-inclusion o" t!e earlier ad&inistrations in itsrevie'. !e latterBs dealin%s is re&otel( relevant to %ood !ouse$eepin% t!at is intended to &ana%e a s&oot! transition "ro& onead&inistration to t!e next.

). !e PresidentBs Jud%&entas a%ainst t!e CourtBs

!at is t!e "irst point. !e second point is t!at t!e Court needs to stand 'it!in t!e li&its o" its po'er to revie' t!e actions o" a co-e<ual #ranc!, li$e t!ose o" t!e President, 'it!in t!e sp!ere o" its constitutional aut!orit(. Since, as t!e &a=orit( concedes, t!ecreation o" t!e rut! Co&&ission is 'it!in t!e constitutional po'ers o" President P-No( to underta$e, t!en to !i&, not to t!e Court,#elon%s t!e discretion to de"ine t!e li&its o" t!e investi%ation as !e dee&s "it. !e Court cannot pit its =ud%&ent a%ainst t!e

=ud%&ent o" t!e President in suc! &atter.

6nd '!en can t!e Supre&e Court inter"ere 'it! t!e exercise o" t!at discretion !e ans'er is, as provided in Section 1, 6rticle 7III

o" t!e 1@9 Constitution, onl( '!en t!e President %ravel( a#uses !is exercise o" suc! discretion. !is &eans t!at, in restrictin% t!erut! Co&&issionBs investi%ation onl( to corruptions co&&itted durin% t!e previous ad&inistration, !e acted capriciousl( and'!i&sicall( or in an ar#itrar( or despotic &anner.9

o act capriciousl( and '!i&sicall( is to act "rea$is!l(, a#ruptl(, or erraticall(, li$e lau%!in% one &o&ent and cr(in% t!e next 'it!outapparent reason. Does t!is c!aracteri5e t!e PresidentBs action in t!is case, considerin% t!at !e &erel( acted to set a "easi#le tar%et,neutrali5e political #ias, assi%n t!e Co&&ission a tas$ suita#le to its li&ited capacit(, and o#serve correct !ouse$eepin%procedures Did !e act ar#itraril( in t!e &anner o" little c!ildren c!an%in% t!e rules o" t!e %a&e in t!e &iddle o" t!e pla( ordespoticall( in t!e &anner o" a dictator nless !e did, t!e Court &ust rein in its !orses. It cannot i tsel" exceed t!e li&its o" itspo'er o" revie' under t!e Constitution.






8/13/2019 G.R. No. 192935 December 7, 2010


G.R. No. 192935 December 7, 2010

Documents

Transcript of G.R. No. 192935 December 7, 2010