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Republic of the Philippines

SUPREME COURT

Manila

EN BANC

G.R. No. 18!"# Septe$be% "& '8

ROMU(O (. NER)& petitione%&

*s.

SENATE COMM)TTEE ON ACCOUNTAB)()T+ O, PUB()C O,,)CERS AN-

)NEST)GAT)ONS& SENATE COMM)TTEE ON TRA-E AN- COMMERCE& AN- SENATE

COMM)TTEE ON NAT)ONA( -E,ENSE AN- SECUR)T+& %espon/ents.

RESO(UT)ON

(EONAR-O0-E CASTRO& .2

E3ecuti*e p%i*ile4e is not a pe%sonal p%i*ile4e& but one that a/he%es to the O5ce of

the P%esi/ent. )t e3ists to p%otect public inte%est& not to bene6t a pa%ticula% public

o5cial. )ts pu%pose& a$on4 othe%s& is to assu%e that the nation 7ill %ecei*e thebene6t of can/i/& obecti*e an/ unt%a$$ele/ co$$unication an/ e3chan4e of

info%$ation bet7een the P%esi/ent an/ his9he% a/*ise%s in the p%ocess of shapin4 o%

fo%$in4 policies an/ a%%i*in4 at /ecisions in the e3e%cise of the functions of the

P%esi/enc: un/e% the Constitution. The con6/entialit: of the P%esi/ent;s

con*e%sations an/ co%%espon/ence is not uni<ue. )t is a=in to the con6/entialit: of

u/icial /elibe%ations. )t possesses the sa$e *alue as the %i4ht to p%i*ac: of all



citi>ens an/ $o%e& because it is /ictate/ b: public inte%est an/ the constitutionall:

o%/aine/ sepa%ation of 4o*e%n$ental po7e%s.

)n these p%ocee/in4s& this Cou%t has been calle/ upon to e3e%cise its po7e% of

%e*ie7 an/ a%bit%ate a hotl:& e*en ac%i$oniousl:& /ebate/ /ispute bet7een the

Cou%t;s co0e<ual b%anches of 4o*e%n$ent. )n this tas=& this Cou%t shoul/ neithe%

cu%b the le4iti$ate po7e%s of an: of the co0e<ual an/ coo%/inate b%anches of

4o*e%n$ent no% allo7 an: of the$ to o*e%step the boun/a%ies set fo% it b: ou%

Constitution. The co$petin4 inte%ests in the case at ba% a%e the clai$ of e3ecuti*e

p%i*ile4e b: the P%esi/ent& on the one han/& an/ the %espon/ent Senate

Co$$ittees; asse%tion of thei% po7e% to con/uct le4islati*e in<ui%ies& on the othe%.

The pa%ticula% facts an/ ci%cu$stances of the p%esent case& st%ippe/ of the

politicall: an/ e$otionall: cha%4e/ %heto%ic f%o$ both si/es an/ *ie7e/ in the li4ht

of settle/ constitutional an/ le4al /oct%ines& plainl: lea/ to the conclusion that the

clai$ of e3ecuti*e p%i*ile4e $ust be uphel/.

Assaile/ in this $otion fo% %econsi/e%ation is ou% -ecision /ate/ Ma%ch '?& '8 @the

-ecision& 4%antin4 the petition fo% ce%tio%a%i 6le/ b: petitione% Ro$ulo (. Ne%i

a4ainst the %espon/ent Senate Co$$ittees on Accountabilit: of Public O5ce%s an/

)n*esti4ations&1 T%a/e an/ Co$$e%ce&' an/ National -efense an/ Secu%it:

@collecti*el: the %espon/ent Co$$ittees.#

A b%ief %e*ie7 of the facts is i$pe%ati*e.

On Septe$be% '!& '& petitione% appea%e/ befo%e %espon/ent Co$$ittees an/

testi6e/ fo% about ele*en @11 hou%s on $atte%s conce%nin4 the National B%oa/ban/

P%oect @the NBN P%oect& a p%oect a7a%/e/ b: the -epa%t$ent of T%anspo%tation

an/ Co$$unications @-OTC to Dhon4 in4 Teleco$$unications E<uip$ent

@DTE. Petitione% /isclose/ that then Co$$ission on Elections @COME(EC

Chai%$an Bena$in Abalos oFe%e/ hi$ P' Million in e3chan4e fo% his app%o*al of

the NBN P%oect. e fu%the% na%%ate/ that he info%$e/ P%esi/ent Glo%ia Macapa4al

A%%o:o @P%esi/ent A%%o:o of the b%ibe%: atte$pt an/ that she inst%ucte/ hi$ not toaccept the b%ibe. o7e*e%& 7hen p%obe/ fu%the% on P%esi/ent A%%o:o an/

petitione%;s /iscussions %elatin4 to the NBN P%oect& petitione% %efuse/ to ans7e%&

in*o=in4 e3ecuti*e p%i*ile4e. To be speci6c& petitione% %efuse/ to ans7e% <uestions

on2 @a 7hethe% o% not P%esi/ent A%%o:o follo7e/ up the NBN P%oect&" @b 7hethe% o%

not she /i%ecte/ hi$ to p%io%iti>e it&? an/ @c 7hethe% o% not she /i%ecte/ hi$ to

app%o*e it.!



Respon/ent Co$$ittees pe%siste/ in =no7in4 petitione%;s ans7e%s to these th%ee

<uestions b: %e<ui%in4 hi$ to appea% an/ testif: once $o%e on No*e$be% '& '.

On No*e$be% 1?& '& E3ecuti*e Sec%eta%: E/ua%/o R. E%$ita 7%ote to %espon/ent

Co$$ittees an/ %e<ueste/ the$ to /ispense 7ith petitione%;s testi$on: on the4%oun/ of e3ecuti*e p%i*ile4e. The lette% of E3ecuti*e Sec%eta%: E%$ita pe%tinentl:

state/2

,ollo7in4 the %ulin4 in Senate *. E%$ita& the fo%e4oin4 <uestions fall un/e%

con*e%sations an/ co%%espon/ence bet7een the P%esi/ent an/ public o5cials 7hich

a%e consi/e%e/ e3ecuti*e p%i*ile4e @Al$onte *. as<ue>& G.R. H?!#& '# Ma: 1HH?I

Cha*e> *. PEA& G.R. 1##'?& ul: H& ''. Maintainin4 the con6/entialit: of

con*e%sations of the P%esi/ent is necessa%: in the e3e%cise of he% e3ecuti*e an/

polic: /ecision $a=in4 p%ocess. The e3pectation of a P%esi/ent to the con6/entialit:

of he% con*e%sations an/ co%%espon/ences& li=e the *alue 7hich 7e acco%/

/efe%ence fo% the p%i*ac: of all citi>ens& is the necessit: fo% p%otection of the public

inte%est in can/i/& obecti*e& an/ e*en blunt o% ha%sh opinions in P%esi/ential

/ecision0$a=in4. -isclosu%e of con*e%sations of the P%esi/ent 7ill ha*e a chillin4

eFect on the P%esi/ent& an/ 7ill ha$pe% he% in the eFecti*e /ischa%4e of he% /uties

an/ %esponsibilities& if she is not p%otecte/ b: the con6/entialit: of he%

con*e%sations.

The conte3t in 7hich e3ecuti*e p%i*ile4e is bein4 in*o=e/ is that the info%$ation

sou4ht to be /isclose/ $i4ht i$pai% ou% /iplo$atic as 7ell as econo$ic %elations

7ith the People;s Republic of China. Gi*en the con6/ential natu%e in 7hich these

info%$ation 7e%e con*e:e/ to the P%esi/ent& he cannot p%o*i/e the Co$$ittee an:

fu%the% /etails of these con*e%sations& 7ithout /isclosin4 the *e%: thin4 the p%i*ile4e

is /esi4ne/ to p%otect.

)n li4ht of the abo*e consi/e%ations& this O5ce is const%aine/ to in*o=e the settle/

/oct%ine of e3ecuti*e p%i*ile4e as %e6ne/ in Senate *. E%$ita& an/ has a/*ise/

Sec%eta%: Ne%i acco%/in4l:.

Consi/e%in4 that Sec. Ne%i has been len4thil: inte%%o4ate/ on the subect in an

unp%ece/ente/ 110hou% hea%in4& 7he%ein he has ans7e%e/ all <uestions p%opoun/e/

to hi$ e3cept the fo%e4oin4 <uestions in*ol*in4 e3ecuti*e p%i*ile4e& 7e the%efo%e

%e<uest that his testi$on: on ' No*e$be% ' on the DTE 9 NBN p%oect be

/ispense/ 7ith.



On No*e$be% '& '& petitione% /i/ not appea% befo%e %espon/ent Co$$ittees

upon o%/e%s of the P%esi/ent in*o=in4 e3ecuti*e p%i*ile4e. On No*e$be% ''& '&

the %espon/ent Co$$ittees issue/ the sho70cause lette% %e<ui%in4 hi$ to e3plain

7h: he shoul/ not be cite/ in conte$pt. On No*e$be% 'H& '& in petitione%;s%epl: to %espon/ent Co$$ittees& he $anifeste/ that it 7as not his intention to

i4no%e the Senate hea%in4 an/ that he thou4ht the onl: %e$ainin4 <uestions 7e%e

those he clai$e/ to be co*e%e/ b: e3ecuti*e p%i*ile4e. e also $anifeste/ his

7illin4ness to appea% an/ testif: shoul/ the%e be ne7 $atte%s to be ta=en up. e

ust %e<ueste/ that he be fu%nishe/ in a/*ance as to 7hat else he nee/s to

cla%if:.

Respon/ent Co$$ittees foun/ petitione%;s e3planations unsatisfacto%:. Jithout

%espon/in4 to his %e<uest fo% a/*ance notice of the $atte%s that he shoul/ still

cla%if:& the: issue/ the O%/e% /ate/ anua%: #& '8I )n Re2 P.S. Res. Nos.

1'&1'H&1#! K 1""I an/ p%i*ile4e speeches of Senato% (acson an/ Santia4o @all on

the DTE0NBN P%oect& citin4 petitione% in conte$pt of %espon/ent Co$$ittees an/

o%/e%in4 his a%%est an/ /etention at the O5ce of the Senate Se%4eant0at0A%$s until

such ti$e that he 7oul/ appea% an/ 4i*e his testi$on:.

On the sa$e /ate& petitione% $o*e/ fo% the %econsi/e%ation of the abo*e O%/e%.8 e

insiste/ that he ha/ not sho7n an: conte$ptible con/uct 7o%th: of conte$pt an/

a%%est. e e$phasi>e/ his 7illin4ness to testif: on ne7 $atte%s& but %espon/ent

Co$$ittees /i/ not %espon/ to his %e<uest fo% a/*ance notice of <uestions. e also

$entione/ the petition fo% ce%tio%a%i he p%e*iousl: 6le/ 7ith this Cou%t on -ece$be%

& '. Acco%/in4 to hi$& this shoul/ %est%ain %espon/ent Co$$ittees f%o$

enfo%cin4 the o%/e% /ate/ anua%: #& '8 7hich /ecla%e/ hi$ in conte$pt an/

/i%ecte/ his a%%est an/ /etention.

Petitione% then 6le/ his Supple$ental Petition fo% Ce%tio%a%i @7ith U%4ent Application

fo% TRO9P%eli$ina%: )nunction on ,eb%ua%: 1& '8. )n the Cou%t;s Resolution /ate/

,eb%ua%: "& '8& the pa%ties 7e%e %e<ui%e/ to obse%*e the status <uo p%e*ailin4

p%io% to the O%/e% /ate/ anua%: #& '8.

On Ma%ch '?& '8& the Cou%t 4%ante/ his petition fo% ce%tio%a%i on t7o 4%oun/s2

6%st& the co$$unications elicite/ b: the th%ee @# <uestions 7e%e co*e%e/ b:

e3ecuti*e p%i*ile4eI an/ secon/& %espon/ent Co$$ittees co$$itte/ 4%a*e abuse of

/isc%etion in issuin4 the conte$pt o%/e%. Anent the 6%st 4%oun/& 7e consi/e%e/ the



subect co$$unications as fallin4 un/e% the p%esi/ential co$$unications p%i*ile4e

because @a the: %elate/ to a <uintessential an/ non0/ele4able po7e% of the

P%esi/ent& @b the: 7e%e %ecei*e/ b: a close a/*iso% of the P%esi/ent& an/ @c

%espon/ent Co$$ittees faile/ to a/e<uatel: sho7 a co$pellin4 nee/ that 7oul/

ustif: the li$itation of the p%i*ile4e an/ the una*ailabilit: of the info%$ation

else7he%e b: an app%op%iate in*esti4atin4 autho%it:. As to the secon/ 4%oun/& 7efoun/ that %espon/ent Co$$ittees co$$itte/ 4%a*e abuse of /isc%etion in issuin4

the conte$pt o%/e% because @a the%e 7as a *ali/ clai$ of e3ecuti*e p%i*ile4e& @b

thei% in*itations to petitione% /i/ not contain the <uestions %ele*ant to the in<ui%:&

@c the%e 7as a clou/ of /oubt as to the %e4ula%it: of the p%ocee/in4 that le/ to thei%

issuance of the conte$pt o%/e%& @/ the: *iolate/ Section '1& A%ticle ) of the

Constitution because thei% in<ui%: 7as not in acco%/ance 7ith the /ul: publishe/

%ules of p%oce/u%e& an/ @e the: issue/ the conte$pt o%/e% a%bit%a%il: an/

p%ecipitatel:.

On Ap%il 8& '8& %espon/ent Co$$ittees 6le/ the p%esent $otion fo%

%econsi/e%ation& ancho%e/ on the follo7in4 4%oun/s2

)

CONTRAR+ TO T)S ONORAB(E COURT;S -EC)S)ON& TERE )S NO -OUBT TAT TE

ASSA)(E- OR-ERS JERE )SSUE- B+ RESPON-ENT COMM)TTEES PURSUANT TO TE

EERC)SE O, TE)R (EG)S(AT)E POJER& AN- NOT MERE(+ TE)R OERS)GT,UNCT)ONS.

))

CONTRAR+ TO T)S ONORAB(E COURT;S -EC)S)ON& TERE CAN BE NO

PRESUMPT)ON TAT TE )N,ORMAT)ON J)TE(- )N TE )NSTANT CASE )S

PR))(EGE-.

)))



CONTRAR+ TO T)S ONORAB(E COURT;S -EC)S)ON& TERE )S NO ,ACTUA( OR

(EGA( BAS)S TO O(- TAT TE COMMUN)CAT)ONS E()C)TE- B+ TE SUBECT

TREE @# LUEST)ONS ARE COERE- B+ EECUT)E PR))(EGE& CONS)-ER)NG

TAT2

A. TERE )S NO SOJ)NG TAT TE MATTERS ,OR J)C EECUT)E PR))(EGE )S

C(A)ME- CONST)TUTE STATE SECRETS.

B. EEN ), TE TESTS A-OPTE- B+ T)S ONORAB(E COURT )N TE -EC)S)ON )S

APP()E-& TERE )S NO SOJ)NG TAT TE E(EMENTS O, PRES)-ENT)A(

COMMUN)CAT)ONS PR))(EGE ARE PRESENT.

C. ON TE CONTRAR+& TERE )S A-ELUATE SOJ)NG O, A COMPE(()NG NEE- TO

UST),+ TE -)SC(OSURE O, TE )N,ORMAT)ON SOUGT.

-. TO UPO(- TE C(A)M O, EECUT)E PR))(EGE )N TE )NSTANT CASE JOU(-

SER)OUS(+ )MPA)R TE RESPON-ENTS; PER,ORMANCE O, TE)R PR)MAR+

,UNCT)ON TO ENACT (AJS.

E. ,)NA((+& TE CONST)TUT)ONA( R)GT O, TE PEOP(E TO )N,ORMAT)ON& AN- TE CONST)TUT)ONA( PO()C)ES ON PUB()C ACCOUNTAB)()T+ AN- TRANSPARENC+

OUTJE)G TE C(A)M O, EECUT)E PR))(EGE.

)

CONTRAR+ TO T)S ONORAB(E COURT;S -EC)S)ON& RESPON-ENTS -)- NOT

COMM)T GRAE ABUSE O, -)SCRET)ON )N )SSU)NG TE ASSA)(E- CONTEMPT

OR-ER& CONS)-ER)NG TAT2

A. TERE )S NO (EG)T)MATE C(A)M O, EECUT)E PR))(EGE )N TE )NSTANT CASE.



B. RESPON-ENTS -)- NOT )O(ATE TE SUPPOSE- RELU)REMENTS (A)- -OJN )N

SENATE . ERM)TA.

C. RESPON-ENTS -U(+ )SSUE- TE CONTEMPT OR-ER )N ACCOR-ANCE J)T

TE)R )NTERNA( RU(ES.

-. RESPON-ENTS -)- NOT )O(ATE TE RELU)REMENTS UN-ER ART)C(E )&

SECT)ON '1 O, TE CONST)TUT)ON RELU)R)NG TAT )TS RU(ES O, PROCE-URE BE

-U(+ PUB()SE-& AN- JERE -EN)E- -UE PROCESS JEN TE COURT

CONS)-ERE- TE OSG;S )NTERENT)ON ON T)S )SSUE J)TOUT G))NG

RESPON-ENTS TE OPPORTUN)T+ TO COMMENT.

E. RESPON-ENTS; )SSUANCE O, TE CONTEMPT OR-ER )S NOT ARB)TRAR+ OR

PREC)P)TATE.

)n his Co$$ent& petitione% cha%4es %espon/ent Co$$ittees 7ith e3a44e%atin4 an/

/isto%tin4 the -ecision of this Cou%t. e a*e%s that the%e is nothin4 in it that

p%ohibits %espon/ent Co$$ittees f%o$ in*esti4atin4 the NBN P%oect o% as=in4 hi$

a//itional <uestions. Acco%/in4 to petitione%& the Cou%t $e%el: applie/ the %ule on

e3ecuti*e p%i*ile4e to the facts of the case. e fu%the% sub$its the follo7in4

contentions2 6%st& the assaile/ -ecision /i/ not %e*e%se the p%esu$ption a4ainste3ecuti*e sec%ec: lai/ /o7n in Senate *. E%$itaI secon/& %espon/ent Co$$ittees

faile/ to o*e%co$e the p%esu$ption of e3ecuti*e p%i*ile4e because it appea%s that

the: coul/ le4islate e*en 7ithout the co$$unications elicite/ b: the th%ee @#

<uestions& an/ the: a/$itte/ that the: coul/ /ispense 7ith petitione%;s testi$on: if

ce%tain NE-A /ocu$ents 7oul/ be 4i*en to the$I thi%/& the %e<ui%e$ent of

speci6cit: applies onl: to the p%i*ile4e fo% State& $ilita%: an/ /iplo$atic sec%ets& not

to the necessa%il: b%oa/ an/ all0enco$passin4 p%esi/ential co$$unications

p%i*ile4eI fou%th& the%e is no %i4ht to p%: into the P%esi/ent;s thou4ht p%ocesses o%

e3plo%ato%: e3chan4esI 6fth& petitione% is not co*e%in4 up o% hi/in4 an:thin4 ille4alI

si3th& the Cou%t has the po7e% an/ /ut: to annul the Senate RulesI se*enth& the

Senate is not a continuin4 bo/:& thus the failu%e of the p%esent Senate to publish itsRules of P%oce/u%e Go*e%nin4 )n<ui%ies in Ai/ of (e4islation @Rules has a *itiatin4

eFect on the$I ei4hth& the %e<ui%e$ent fo% a 7itness to be fu%nishe/ a/*ance cop:

of <uestions co$po%ts 7ith /ue p%ocess an/ the constitutional $an/ate that the

%i4hts of 7itnesses be %especte/I an/ ninth& neithe% petitione% no% %espon/ent has

the 6nal sa: on the $atte% of e3ecuti*e p%i*ile4e& onl: the Cou%t.



,o% its pa%t& the O5ce of the Solicito% Gene%al $aintains that2 @1 the%e is no

cate4o%ical p%onounce$ent f%o$ the Cou%t that the assaile/ O%/e%s 7e%e issue/ b:

%espon/ent Co$$ittees pu%suant to thei% o*e%si4ht functionI hence& the%e is no

%eason fo% the$ to $a=e $uch of the /istinction bet7een Sections '1 an/ ''&

A%ticle ) of the ConstitutionI @' p%esi/ential co$$unications eno: a p%esu$pti*e

p%i*ile4e a4ainst /isclosu%e as ea%lie% hel/ in Al$onte *. as<ue>H an/ Cha*e> *.Public Estates Autho%it: @PEA1I @# the co$$unications elicite/ b: the th%ee @#

<uestions a%e co*e%e/ b: e3ecuti*e p%i*ile4e& because all the ele$ents of the

p%esi/ential co$$unications p%i*ile4e a%e p%esentI @" the subpoena a/

testi6can/u$ issue/ b: %espon/ent Co$$ittees to petitione% is fatall: /efecti*e

un/e% e3istin4 la7 an/ u%isp%u/enceI @? the failu%e of the p%esent Senate to publish

its Rules %en/e%s the sa$e *oi/I an/ @! %espon/ent Co$$ittees a%bit%a%il: issue/

the conte$pt o%/e%.

)nci/entall:& %espon/ent Co$$ittees; obection to the Resolution /ate/ Ma%ch 18&'8 @4%antin4 the O5ce of the Solicito% Gene%al;s Motion fo% (ea*e to )nte%*ene

an/ to A/$it Attache/ Me$o%an/u$ onl: afte% the p%o$ul4ation of the -ecision in

this case is fo%eclose/ b: its unti$eliness.

The co%e issues that a%ise f%o$ the fo%e4oin4 %especti*e contentions of the opposin4

pa%ties a%e as follo7s2

@1 7hethe% o% not the%e is a %eco4ni>e/ p%esu$pti*e p%esi/ential co$$unicationsp%i*ile4e in ou% le4al s:ste$I

@' 7hethe% o% not the%e is factual o% le4al basis to hol/ that the co$$unications

elicite/ b: the th%ee @# <uestions a%e co*e%e/ b: e3ecuti*e p%i*ile4eI

@# 7hethe% o% not %espon/ent Co$$ittees ha*e sho7n that the co$$unications

elicite/ b: the th%ee @# <uestions a%e c%itical to the e3e%cise of thei% functionsI an/

@" 7hethe% o% not %espon/ent Co$$ittees co$$itte/ 4%a*e abuse of /isc%etion in

issuin4 the conte$pt o%/e%.



Je shall /iscuss these issues se%iati$.

)

The%e )s a Reco4ni>e/ P%esu$pti*e

P%esi/ential Co$$unications P%i*ile4e

Respon/ent Co$$ittees a%/entl: a%4ue that the Cou%t;s /ecla%ation that

p%esi/ential co$$unications a%e p%esu$pti*el: p%i*ile4e/ %e*e%ses the

p%esu$ption lai/ /o7n in Senate *. E%$ita11 that inclines hea*il: a4ainst

e3ecuti*e sec%ec: an/ in fa*o% of /isclosu%e. Respon/ent Co$$ittees then clai$

that the Cou%t e%%e/ in %el:in4 on the /oct%ine in Ni3on.

Respon/ent Co$$ittees a%4ue as if this 7e%e the 6%st ti$e the p%esu$ption in fa*o%

of the p%esi/ential co$$unications p%i*ile4e is $entione/ an/ a/opte/ in ou% le4al

s:ste$. That is fa% f%o$ the t%uth. The Cou%t& in the ea%lie% case of Al$onte *.

as<ue>&1' a5%$e/ that the p%esi/ential co$$unications p%i*ile4e is fun/a$ental

to the ope%ation of 4o*e%n$ent an/ ine3t%icabl: %oote/ in the sepa%ation of po7e%s

un/e% the Constitution. E*en Senate *. E%$ita&1# the case %elie/ upon b:

%espon/ent Co$$ittees& %eite%ate/ this concept. The%e& the Cou%t enu$e%ate/ the

cases in 7hich the clai$ of e3ecuti*e p%i*ile4e 7as %eco4ni>e/& a$on4 the$Al$onte *. Cha*e>& Cha*e> *. P%esi/ential Co$$ission on Goo/ Go*e%n$ent

@PCGG&1" an/ Cha*e> *. PEA.1? The Cou%t a%ticulate/ in these cases that the%e a%e

ce%tain t:pes of info%$ation 7hich the 4o*e%n$ent $a: 7ithhol/ f%o$ the

public&1! that the%e is a 4o*e%n$ental p%i*ile4e a4ainst public /isclosu%e 7ith

%espect to state sec%ets %e4a%/in4 $ilita%:& /iplo$atic an/ othe% national secu%it:

$atte%sI1 an/ that the %i4ht to info%$ation /oes not e3ten/ to $atte%s

%eco4ni>e/ as p%i*ile4e/ info%$ation; un/e% the sepa%ation of po7e%s& b: 7hich the

Cou%t $eant P%esi/ential con*e%sations& co%%espon/ences& an/ /iscussions in

close/0/oo% Cabinet $eetin4s.18

Respon/ent Co$$ittees; obse%*ation that this Cou%t;s -ecision %e*e%se/ the

p%esu$ption that inclines hea*il: a4ainst e3ecuti*e sec%ec: an/ in fa*o% of

/isclosu%e a%ises f%o$ a piece$eal inte%p%etation of the sai/ -ecision. The Cou%t

has %epeate/l: hel/ that in o%/e% to a%%i*e at the t%ue intent an/ $eanin4 of a



/ecision& no speci6c po%tion the%eof shoul/ be isolate/ an/ %eso%te/ to& but the

/ecision $ust be consi/e%e/ in its enti%et:.1H

Note that the afo%esai/ p%esu$ption is $a/e in the conte3t of the ci%cu$stances

obtainin4 in Senate *. E%$ita& 7hich /ecla%e/ *oi/ Sections '@b an/ # of E3ecuti*e

O%/e% @E.O. No. "!"& Se%ies of '?. The pe%tinent po%tion of the /ecision in the

sai/ case %ea/s2

,%o$ the abo*e /iscussion on the $eanin4 an/ scope of e3ecuti*e p%i*ile4e& both in

the Unite/ States an/ in this u%isp%u/ence& a clea% p%inciple e$e%4es. E3ecuti*e

p%i*ile4e& 7hethe% asse%te/ a4ainst Con4%ess& the cou%ts& o% the public& is

%eco4ni>e/ onl: in %elation to ce%tain t:pes of info%$ation of a sensiti*e cha%acte%.

Jhile e3ecuti*e p%i*ile4e is a constitutional concept& a clai$ the%eof $a: be *ali/ o%

not /epen/in4 on the 4%oun/ in*o=e/ to ustif: it an/ the conte3t in 7hich it is$a/e. Noticeabl: absent is an: %eco4nition that e3ecuti*e o5cials a%e e3e$pt f%o$

the /ut: to /isclose info%$ation b: the $e%e fact of bein4 e3ecuti*e o5cials.

)n/ee/& the e3t%ao%/ina%: cha%acte% of the e3e$ptions in/icates that the

p%esu$ption inclines hea*il: a4ainst e3ecuti*e sec%ec: an/ in fa*o% of /isclosu%e.

@E$phasis an/ un/e%sco%in4 supplie/

Ob*iousl:& the last sentence of the abo*e0<uote/ pa%a4%aph in Senate *. E%$ita

%efe%s to the e3e$ption bein4 clai$e/ b: the e3ecuti*e o5cials $entione/ in

Section '@b of E.O. No. "!"& solel: b: *i%tue of thei% positions in the E3ecuti*eB%anch. This $eans that 7hen an e3ecuti*e o5cial& 7ho is one of those $entione/

in the sai/ Sec. '@b of E.O. No. "!"& clai$s to be e3e$pt f%o$ /isclosu%e& the%e can

be no p%esu$ption of autho%i>ation to in*o=e e3ecuti*e p%i*ile4e 4i*en b: the

P%esi/ent to sai/ e3ecuti*e o5cial& such that the p%esu$ption in this situation

inclines hea*il: a4ainst e3ecuti*e sec%ec: an/ in fa*o% of /isclosu%e.

Senate *. E%$ita ' e3poun/s on the p%e$ise of the fo%e4oin4 %ulin4 in this 7ise2

Section '@b in %elation to Section # *i%tuall: p%o*i/es that& once the hea/ of o5ce

/ete%$ines that a ce%tain info%$ation is p%i*ile4e/& such /ete%$ination is p%esu$e/

to bea% the P%esi/ent;s autho%it: an/ has the eFect of p%ohibitin4 the o5cial f%o$

appea%in4 befo%e Con4%ess& subect onl: to the e3p%ess p%onounce$ent of the

P%esi/ent that it is allo7in4 the appea%ance of such o5cial. These p%o*isions thus

allo7 the P%esi/ent to autho%i>e clai$s of p%i*ile4e b: $e%e silence.



Such p%esu$pti*e autho%i>ation& ho7e*e%& is cont%a%: to the e3ceptional natu%e of

the p%i*ile4e. E3ecuti*e p%i*ile4e& as al%ea/: /iscusse/& is %eco4ni>e/ 7ith %espect

to info%$ation the con6/ential natu%e of 7hich is c%ucial to the ful6ll$ent of the

uni<ue %ole an/ %esponsibilities of the e3ecuti*e b%anch& o% in those instances 7he%ee3e$ption f%o$ /isclosu%e is necessa%: to the /ischa%4e of hi4hl: i$po%tant

e3ecuti*e %esponsibilities. The /oct%ine of e3ecuti*e p%i*ile4e is thus p%e$ise/ on

the fact that ce%tain info%$ation $ust& as a $atte% of necessit:& be =ept con6/ential

in pu%suit of the public inte%est. The p%i*ile4e bein4& b: /e6nition& an e3e$ption

f%o$ the obli4ation to /isclose info%$ation& in this case to Con4%ess& the necessit:

$ust be of such hi4h /e4%ee as to out7ei4h the public inte%est in enfo%cin4 that

obli4ation in a pa%ticula% case.

)n li4ht of this hi4hl: e3ceptional natu%e of the p%i*ile4e& the Cou%t 6n/s it essential

to li$it to the P%esi/ent the po7e% to in*o=e the p%i*ile4e. She $a: of cou%se

autho%i>e the E3ecuti*e Sec%eta%: to in*o=e the p%i*ile4e on he% behalf& in 7hich

case the E3ecuti*e Sec%eta%: $ust state that the autho%it: is B: o%/e% of the

P%esi/ent& 7hich $eans that he pe%sonall: consulte/ 7ith he%. The p%i*ile4e bein4

an e3t%ao%/ina%: po7e%& it $ust be 7iel/e/ onl: b: the hi4hest o5cial in the

e3ecuti*e hie%a%ch:. )n othe% 7o%/s& the P%esi/ent $a: not autho%i>e he%

subo%/inates to e3e%cise such po7e%. The%e is e*en less %eason to uphol/ such

autho%i>ation in the instant case 7he%e the autho%i>ation is not e3plicit but b: $e%e

silence. Section #& in %elation to Section '@b& is fu%the% in*ali/ on this sco%e.

The constitutional in6%$it: foun/ in the blan=et autho%i>ation to in*o=e e3ecuti*e

p%i*ile4e 4%ante/ b: the P%esi/ent to e3ecuti*e o5cials in Sec. '@b of E.O. No. "!"

/oes not obtain in this case.

)n this case& it 7as the P%esi/ent he%self& th%ou4h E3ecuti*e Sec%eta%: E%$ita& 7ho

in*o=e/ e3ecuti*e p%i*ile4e on a speci6c $atte% in*ol*in4 an e3ecuti*e a4%ee$ent

bet7een the Philippines an/ China& 7hich 7as the subect of the th%ee @# <uestions

p%opoun/e/ to petitione% Ne%i in the cou%se of the Senate Co$$ittees;

in*esti4ation. Thus& the factual settin4 of this case $a%=e/l: /iFe%s f%o$ that

passe/ upon in Senate *. E%$ita.

Mo%eo*e%& cont%a%: to the clai$ of %espon/ents& the -ecision in this p%esent case

he7s closel: to the %ulin4 in Senate *. E%$ita&'1 to 7it2



E3ecuti*e p%i*ile4e

The ph%ase e3ecuti*e p%i*ile4e is not ne7 in this u%is/iction. )t has been use/e*en p%io% to the p%o$ul4ation of the 1H8! Constitution. Bein4 of A$e%ican o%i4in& it

is best un/e%stoo/ in li4ht of ho7 it has been /e6ne/ an/ use/ in the le4al lite%atu%e

of the Unite/ States.

Sch7a%t /e6nes e3ecuti*e p%i*ile4e as the po7e% of the Go*e%n$ent to 7ithhol/

info%$ation f%o$ the public& the cou%ts& an/ the Con4%ess. Si$ila%l:& Ro>ell /e6nes it

as the %i4ht of the P%esi/ent an/ hi4h0le*el e3ecuti*e b%anch o5ce%s to 7ithhol/

info%$ation f%o$ Con4%ess& the cou%ts& an/ ulti$atel: the public. 3 3 3 )n this

u%is/iction& the /oct%ine of e3ecuti*e p%i*ile4e 7as %eco4ni>e/ b: this Cou%t inAl$onte *. as<ue>. Al$onte use/ the te%$ in %efe%ence to the sa$e p%i*ile4e

subect of Ni3on. )t <uote/ the follo7in4 po%tion of the Ni3on /ecision 7hich e3plains

the basis fo% the p%i*ile4e2

The e3pectation of a P%esi/ent to the con6/entialit: of his con*e%sations an/

co%%espon/ences& li=e the clai$ of con6/entialit: of u/icial /elibe%ations& fo%

e3a$ple& he has all the *alues to 7hich 7e acco%/ /efe%ence fo% the p%i*ac: of all

citi>ens an/& a//e/ to those *alues& is the necessit: fo% p%otection of the public

inte%est in can/i/& obecti*e& an/ e*en blunt o% ha%sh opinions in P%esi/ential/ecision0$a=in4. A P%esi/ent an/ those 7ho assist hi$ $ust be f%ee to e3plo%e

alte%nati*es in the p%ocess of shapin4 policies an/ $a=in4 /ecisions an/ to /o so in

a 7a: $an: 7oul/ be un7illin4 to e3p%ess e3cept p%i*atel:. These a%e the

consi/e%ations ustif:in4 a p%esu$pti*e p%i*ile4e fo% P%esi/ential co$$unications.

The p%i*ile4e is fun/a$ental to the ope%ation of 4o*e%n$ent an/ ine3t%icabl: %oote/

in the sepa%ation of po7e%s un/e% the Constitution 3 3 3 @E$phasis an/ italics

supplie/

Clea%l:& the%efo%e& e*en Senate *. E%$ita a/*e%ts to a p%esu$pti*e p%i*ile4e fo%P%esi/ential co$$unication& 7hich 7as %eco4ni>e/ ea%l: on in Al$onte *. as<ue>.

To const%ue the passa4e in Senate *. E%$ita a/*e%te/ to in the Motion fo%

Reconsi/e%ation of %espon/ent Co$$ittees& %efe%%in4 to the non0e3istence of a

p%esu$pti*e autho%i>ation of an e3ecuti*e o5cial& to $ean that the p%esu$ption

in fa*o% of e3ecuti*e p%i*ile4e inclines hea*il: a4ainst e3ecuti*e sec%ec: an/ in

fa*o% of /isclosu%e is to /isto%t the %ulin4 in the Senate *. E%$ita an/ $a=e the

sa$e en4a4e in self0cont%a/iction.



Senate *. E%$ita'' e3poun/s on the constitutional un/e%pinnin4 of the %elationship

bet7een the E3ecuti*e -epa%t$ent an/ the (e4islati*e -epa%t$ent to e3plain 7h:

the%e shoul/ be no i$plie/ autho%i>ation o% p%esu$pti*e autho%i>ation to in*o=e

e3ecuti*e p%i*ile4e b: the P%esi/ent;s subo%/inate o5cials& as follo7s2

Jhen Con4%ess e3e%cises its po7e% of in<ui%:& the onl: 7a: fo% /epa%t$ent hea/s to

e3e$pt the$sel*es the%ef%o$ is b: a *ali/ clai$ of p%i*ile4e. The: a%e not e3e$pt

b: the $e%e fact that the: a%e /epa%t$ent hea/s. Onl: one e3ecuti*e o5cial $a:

be e3e$pte/ f%o$ this po7e% 0 the P%esi/ent on 7ho$ e3ecuti*e po7e% is *este/&

hence& be:on/ the %each of Con4%ess e3cept th%ou4h the po7e% of i$peach$ent. )t

is base/ on he bein4 the hi4hest o5cial of the e3ecuti*e b%anch& an/ the /ue

%espect acco%/e/ to a co0e<ual b%anch of 4o*e%n$ents 7hich is sanctione/ b: a

lon40stan/in4 custo$. @Un/e%sco%in4 supplie/

Thus& if 7hat is in*ol*e/ is the p%esu$pti*e p%i*ile4e of p%esi/ential co$$unications

7hen in*o=e/ b: the P%esi/ent on a $atte% clea%l: 7ithin the /o$ain of the

E3ecuti*e& the sai/ p%esu$ption /ictates that the sa$e be %eco4ni>e/ an/ be 4i*en

p%efe%ence o% p%io%it:& in the absence of p%oof of a co$pellin4 o% c%itical nee/ fo%

/isclosu%e b: the one assailin4 such p%esu$ption. An: const%uction to the cont%a%:

7ill %en/e% $eanin4less the p%esu$ption acco%/e/ b: settle/ u%isp%u/ence in fa*o%

of e3ecuti*e p%i*ile4e. )n fact& Senate *. E%$ita %eite%ates u%isp%u/ence citin4 the

consi/e%ations ustif:in4 a p%esu$pti*e p%i*ile4e fo% P%esi/ential

co$$unications.'#

))

The%e A%e ,actual an/ (e4al Bases to

ol/ that the Co$$unications Elicite/ b: the

Th%ee @# Luestions A%e Co*e%e/ b: E3ecuti*e P%i*ile4e

Respon/ent Co$$ittees clai$ that the co$$unications elicite/ b: the th%ee @#

<uestions a%e not co*e%e/ b: e3ecuti*e p%i*ile4e because the ele$ents of the

p%esi/ential co$$unications p%i*ile4e a%e not p%esent.



A. The po7e% to ente% into an e3ecuti*e a4%ee$ent is a <uintessential an/ non0

/ele4able p%esi/ential po7e%.

,i%st& %espon/ent Co$$ittees conten/ that the po7e% to secu%e a fo%ei4n loan /oes

not %elate to a <uintessential an/ non0/ele4able p%esi/ential po7e%& because the

Constitution /oes not *est it in the P%esi/ent alone& but also in the Moneta%: Boa%/

7hich is %e<ui%e/ to 4i*e its p%io% concu%%ence an/ to %epo%t to Con4%ess.

This a%4u$ent is unpe%suasi*e.

The fact that a po7e% is subect to the concu%%ence of anothe% entit: /oes not $a=e

such po7e% less e3ecuti*e. Luintessential is /e6ne/ as the $ost pe%fect

e$bo/i$ent of so$ethin4& the concent%ate/ essence of substance.'" On the othe%

han/& non0/ele4able $eans that a po7e% o% /ut: cannot be /ele4ate/ to anothe%

o%& e*en if /ele4ate/& the %esponsibilit: %e$ains 7ith the obli4o%.'? The po7e% to

ente% into an e3ecuti*e a4%ee$ent is in essence an e3ecuti*e po7e%. This autho%it:

of the P%esi/ent to ente% into e3ecuti*e a4%ee$ents 7ithout the concu%%ence of the

(e4islatu%e has t%a/itionall: been %eco4ni>e/ in Philippine u%isp%u/ence.'! No7& the

fact that the P%esi/ent has to secu%e the p%io% concu%%ence of the Moneta%: Boa%/&

7hich shall sub$it to Con4%ess a co$plete %epo%t of its /ecision befo%e cont%actin4

o% 4ua%anteein4 fo%ei4n loans& /oes not /i$inish the e3ecuti*e natu%e of the po7e%.

The in*iolate /oct%ine of sepa%ation of po7e%s a$on4 the le4islati*e& e3ecuti*e an/

u/icial b%anches of 4o*e%n$ent b: no $eans p%esc%ibes absolute autono$: in the

/ischa%4e b: each b%anch of that pa%t of the 4o*e%n$ental po7e% assi4ne/ to it b:

the so*e%ei4n people. The%e is the co%olla%: /oct%ine of chec=s an/ balances& 7hich

has been ca%efull: calib%ate/ b: the Constitution to te$pe% the o5cial acts of each

of these th%ee b%anches. Thus& b: analo4:& the fact that ce%tain le4islati*e acts

%e<ui%e action f%o$ the P%esi/ent fo% thei% *ali/it: /oes not %en/e% such acts less

le4islati*e in natu%e. A 4oo/ e3a$ple is the po7e% to pass a la7. A%ticle )& Section' of the Constitution $an/ates that e*e%: bill passe/ b: Con4%ess shall& befo%e it

beco$es a la7& be p%esente/ to the P%esi/ent 7ho shall app%o*e o% *eto the sa$e.

The fact that the app%o*al o% *etoin4 of the bill is lo/4e/ 7ith the P%esi/ent /oes not

%en/e% the po7e% to pass la7 e3ecuti*e in natu%e. This is because the po7e% to pass

la7 is 4ene%all: a <uintessential an/ non0/ele4able po7e% of the (e4islatu%e. )n the

sa$e *ein& the e3ecuti*e po7e% to ente% o% not to ente% into a cont%act to secu%e

fo%ei4n loans /oes not beco$e less e3ecuti*e in natu%e because of con/itions lai/



/o7n in the Constitution. The 6nal /ecision in the e3e%cise of the sai/ e3ecuti*e

po7e% is still lo/4e/ in the O5ce of the P%esi/ent.

B. The /oct%ine of ope%ational p%o3i$it: 7as lai/ /o7n p%ecisel: to li$it the scope

of the p%esi/ential co$$unications p%i*ile4e but& in an: case& it is not conclusi*e.

Secon/& %espon/ent Co$$ittees also see= %econsi/e%ation of the application of the

/oct%ine of ope%ational p%o3i$it: fo% the %eason that it $a:be $isconst%ue/ to

e3pan/ the scope of the p%esi/ential co$$unications p%i*ile4e to co$$unications

bet7een those 7ho a%e ope%ationall: p%o3i$ate; to the P%esi/ent but 7ho $a: ha*e

no /i%ect co$$unications 7ith he%.

)t $ust be st%esse/ that the /oct%ine of ope%ational p%o3i$it: 7as lai/ /o7n in )n

%e2 Seale/ Case'p%ecisel: to li$it the scope of the p%esi/ential co$$unications

p%i*ile4e. The U.S. cou%t 7as a7a%e of the /an4e%s that a li$itless e3tension of the

p%i*ile4e %is=s an/& the%efo%e& ca%efull: cabine/ its %each b: e3plicitl: con6nin4 it to

Jhite ouse staF& an/ not to staFs of the a4encies& an/ then onl: to Jhite ouse

staF that has ope%ational p%o3i$it: to /i%ect p%esi/ential /ecision0$a=in4& thus2

Je a%e a7a%e that such an e3tension& unless ca%efull: ci%cu$sc%ibe/ to acco$plish

the pu%poses of the p%i*ile4e& coul/ pose a si4ni6cant %is= of e3pan/in4 to a la%4es7ath of the e3ecuti*e b%anch a p%i*ile4e that is botto$e/ on a %eco4nition of the

uni<ue %ole of the P%esi/ent. )n o%/e% to li$it this %is=& the p%esi/ential

co$$unications p%i*ile4e shoul/ be const%ue/ as na%%o7l: as is consistent 7ith

ensu%in4 that the con6/entialit: of the P%esi/ent;s /ecision0$a=in4 p%ocess is

a/e<uatel: p%otecte/. Not e*e%: pe%son 7ho pla:s a %ole in the /e*elop$ent of

p%esi/ential a/*ice& no $atte% ho7 %e$ote an/ %e$o*e/ f%o$ the P%esi/ent& can

<ualif: fo% the p%i*ile4e. )n pa%ticula%& the p%i*ile4e shoul/ not e3ten/ to staF outsi/e

the Jhite ouse in e3ecuti*e b%anch a4encies. )nstea/& the p%i*ile4e shoul/ appl:

onl: to co$$unications autho%e/ o% solicite/ an/ %ecei*e/ b: those $e$be%s of an

i$$e/iate Jhite ouse a/*iso%;s staF 7ho ha*e b%oa/ an/ si4ni6cant %esponsibilit:

fo% in*esti4ation an/ fo%$ulatin4 the a/*ice to be 4i*en the P%esi/ent on thepa%ticula% $atte% to 7hich the co$$unications %elate. Onl: co$$unications at that

le*el a%e close enou4h to the P%esi/ent to be %e*elato%: of his /elibe%ations o% to

pose a %is= to the can/o% of his a/*ise%s. See AAPS& HH ,.'/ at H1 @it is

ope%ational p%o3i$it: to the P%esi/ent that $atte%s in /ete%$inin4 7hethe% the

P%esi/ent;s con6/entialit: inte%ests is i$plicate/. @E$phasis supplie/



)n the case at ba%& the /an4e% of e3pan/in4 the p%i*ile4e to a la%4e s7ath of the

e3ecuti*e b%anch @a fea% appa%entl: ente%taine/ b: %espon/ents is absent because

the o5cial in*ol*e/ he%e is a $e$be% of the Cabinet& thus& p%ope%l: 7ithin the te%$

a/*iso% of the P%esi/entI in fact& he% alte% e4o an/ a $e$be% of he% o5cial fa$il:.

Ne*e%theless& in ci%cu$stances in 7hich the o5cial in*ol*e/ is fa% too %e$ote& this

Cou%t also $entione/ in the -ecision the o%4ani>ational test lai/ /o7n in u/icialJatch& )nc. *. -epa%t$ent of ustice.'8 This 4oes to sho7 that the ope%ational

p%o3i$it: test use/ in the -ecision is not consi/e%e/ conclusi*e in e*e%: case. )n

/ete%$inin4 7hich test to use& the $ain consi/e%ation is to li$it the a*ailabilit: of

e3ecuti*e p%i*ile4e onl: to o5cials 7ho stan/ p%o3i$ate to the P%esi/ent& not onl:

b: %eason of thei% function& but also b: %eason of thei% positions in the E3ecuti*e;s

o%4ani>ational st%uctu%e. Thus& %espon/ent Co$$ittees; fea% that the scope of the

p%i*ile4e 7oul/ be unnecessa%il: e3pan/e/ 7ith the use of the ope%ational p%o3i$it:

test is unfoun/e/.

C. The P%esi/ent;s clai$ of e3ecuti*e p%i*ile4e is not $e%el: base/ on a 4ene%ali>e/

inte%estI an/ in balancin4 %espon/ent Co$$ittees; an/ the P%esi/ent;s clashin4

inte%ests& the Cou%t /i/ not /is%e4a%/ the 1H8 Constitutional p%o*isions on

4o*e%n$ent t%anspa%enc:& accountabilit: an/ /isclosu%e of info%$ation.

Thi%/& %espon/ent Co$$ittees clai$ that the Cou%t e%%e/ in uphol/in4 the

P%esi/ent;s in*ocation& th%ou4h the E3ecuti*e Sec%eta%:& of e3ecuti*e p%i*ile4e

because @a bet7een %espon/ent Co$$ittees; speci6c an/ /e$onst%ate/ nee/ an/

the P%esi/ent;s 4ene%ali>e/ inte%est in con6/entialit:& the%e is a nee/ to st%i=e thebalance in fa*o% of the fo%$e%I an/ @b in the balancin4 of inte%est& the Cou%t

/is%e4a%/e/ the p%o*isions of the 1H8 Philippine Constitution on 4o*e%n$ent

t%anspa%enc:& accountabilit: an/ /isclosu%e of info%$ation& speci6call:& A%ticle )))&

Section I'H A%ticle ))& Sections '"# an/ '8I#1 A%ticle )& Section 1I#' A%ticle )&

Section 1I## A%ticle ))& Section 'I#" an/ A%ticle ))& Sections H&#? '1&#! an/

''.#

)t $ust be st%esse/ that the P%esi/ent;s clai$ of e3ecuti*e p%i*ile4e is not $e%el:

foun/e/ on he% 4ene%ali>e/ inte%est in con6/entialit:. The (ette% /ate/ No*e$be%1?& ' of E3ecuti*e Sec%eta%: E%$ita speci6e/ p%esi/ential co$$unications

p%i*ile4e in %elation to /iplo$atic an/ econo$ic %elations 7ith anothe% so*e%ei4n

nation as the bases fo% the clai$. Thus& the (ette% state/2



The conte3t in 7hich e3ecuti*e p%i*ile4e is bein4 in*o=e/ is that the info%$ation

sou4ht to be /isclose/ $i4ht i$pai% ou% /iplo$atic as 7ell as econo$ic %elations

7ith the People;s Republic of China. Gi*en the con6/ential natu%e in 7hich this

info%$ation 7e%e con*e:e/ to the P%esi/ent& he cannot p%o*i/e the Co$$ittee an:

fu%the% /etails of these con*e%sations& 7ithout /isclosin4 the *e%: thin4 the p%i*ile4e

is /esi4ne/ to p%otect. @e$phasis supplie/

E*en in Senate *. E%$ita& it 7as hel/ that Con4%ess $ust not %e<ui%e the E3ecuti*e

to state the %easons fo% the clai$ 7ith such pa%ticula%it: as to co$pel /isclosu%e of

the info%$ation 7hich the p%i*ile4e is $eant to p%otect. This is a $atte% of %espect

fo% a coo%/inate an/ co0e<ual /epa%t$ent.

)t is eas: to /isce%n the /an4e% that 4oes 7ith the /isclosu%e of the P%esi/ent;s

co$$unication 7ith he% a/*iso%. The NBN P%oect in*ol*es a fo%ei4n count%: as apa%t: to the a4%ee$ent. )t 7as actuall: a p%o/uct of the $eetin4 of $in/s bet7een

o5cials of the Philippines an/ China. Jhate*e% the P%esi/ent sa:s about the

a4%ee$ent 0 pa%ticula%l: 7hile o5cial ne4otiations a%e on4oin4 0 a%e $atte%s 7hich

China 7ill su%el: *ie7 7ith pa%ticula% inte%est. The%e is /an4e% in such =in/ of

e3posu%e. )t coul/ a/*e%sel: aFect ou% /iplo$atic as 7ell as econo$ic %elations 7ith

the People;s Republic of China. Je %eite%ate the i$po%tance of sec%ec: in $atte%s

in*ol*in4 fo%ei4n ne4otiations as state/ in Unite/ States *. Cu%tiss0J%i4ht E3po%t

Co%p.& #8 thus2

The natu%e of fo%ei4n ne4otiations %e<ui%es caution& an/ thei% success $ust often

/epen/ on sec%ec:& an/ e*en 7hen b%ou4ht to a conclusion& a full /isclosu%e of all

the $easu%es& /e$an/s& o% e*entual concessions 7hich $a: ha*e been p%opose/ o%

conte$plate/ 7oul/ be e3t%e$el: i$politic& fo% this $i4ht ha*e a pe%nicious

inuence on futu%e ne4otiations o% p%o/uce i$$e/iate incon*eniences& pe%haps

/an4e% an/ $ischief& in %elation to othe% po7e%s. The necessit: of such caution an/

sec%ec: 7as one co4ent %eason fo% *estin4 the po7e% of $a=in4 t%eaties in the

P%esi/ent& 7ith the a/*ice an/ consent of the Senate& the p%inciple on 7hich the

bo/: 7as fo%$e/ con6nin4 it to a s$all nu$be% of $e$be%s. To a/$it& then& a %i4ht

in the ouse of Rep%esentati*es to /e$an/ an/ to ha*e as a $atte% of cou%se all thepape%s %espectin4 a ne4otiation 7ith a fo%ei4n po7e% 7oul/ be to establish a

/an4e%ous p%ece/ent.

US u%isp%u/ence clea%l: 4ua%/s a4ainst the /an4e%s of allo7in4 Con4%ess access to

all pape%s %elatin4 to a ne4otiation 7ith a fo%ei4n po7e%. )n this u%is/iction& the



%ecent case of A=ba:an Citi>ens Action Pa%t:& et al. *. Tho$as G. A<uino& et al.#H

uphel/ the p%i*ile4e/ cha%acte% of /iplo$atic ne4otiations. )n A=ba:an& the Cou%t

state/2

P%i*ile4e/ cha%acte% of /iplo$atic ne4otiations

The p%i*ile4e/ cha%acte% of /iplo$atic ne4otiations has been %eco4ni>e/ in this

u%is/iction. )n /iscussin4 *ali/ li$itations on the %i4ht to info%$ation& the Cou%t in

Cha*e> *. PCGG hel/ that info%$ation on inte%04o*e%n$ent e3chan4es p%io% to the

conclusion of t%eaties an/ e3ecuti*e a4%ee$ents $a: be subect to %easonable

safe4ua%/s fo% the sa=e of national inte%est. E*en ea%lie%& the sa$e p%i*ile4e 7as

uphel/ in People;s Mo*e$ent fo% P%ess ,%ee/o$ @PMP, *. Man4lapus 7he%ein the

Cou%t /iscusse/ the %easons fo% the p%i*ile4e in $o%e p%ecise te%$s.

)n PMP, *. Man4lapus& the the%ein petitione%s 7e%e see=in4 info%$ation f%o$ the

P%esi/ent;s %ep%esentati*es on the state of the then on04oin4 ne4otiations of the RP0

US Milita%: Bases A4%ee$ent. The Cou%t /enie/ the petition& st%essin4 that sec%ec:

of ne4otiations 7ith fo%ei4n count%ies is not *iolati*e of the constitutional p%o*isions

of f%ee/o$ of speech o% of the p%ess no% of the f%ee/o$ of access to info%$ation.

The Resolution 7ent on to state& thus2

The natu%e of /iplo$ac: %e<ui%es cent%ali>ation of autho%it: an/ e3pe/ition of

/ecision 7hich a%e inhe%ent in e3ecuti*e action. Anothe% essential cha%acte%istic of

/iplo$ac: is its con6/ential natu%e. Althou4h $uch has been sai/ about open an/

sec%et /iplo$ac:& 7ith /ispa%a4e$ent of the latte%& Sec%eta%ies of State u4hes

an/ Sti$son ha*e clea%l: anal:>e/ an/ usti6e/ the p%actice. )n the 7o%/s of M%.

Sti$son2

A co$plicate/ ne4otiation Qcannot be ca%%ie/ th%ou4h 7ithout $an:& $an: p%i*ate

tal=s an/ /iscussion& $an to $anI $an: tentati*e su44estions an/ p%oposals.

-ele4ates f%o$ othe% count%ies co$e an/ tell :ou in con6/ence of thei% t%oubles at

ho$e an/ of thei% /iFe%ences 7ith othe% count%ies an/ 7ith othe% /ele4atesI the:

tell :ou of 7hat the: 7oul/ /o un/e% ce%tain ci%cu$stances an/ 7oul/ not /o un/e%

othe% ci%cu$stancesQ )f these %epo%tsQ shoul/ beco$e publicQ 7ho 7oul/ e*e%

t%ust A$e%ican -ele4ations in anothe% confe%ence @Unite/ States -epa%t$ent of

State& P%ess Releases& une & 1H#& pp. '8'0'8"



3 3 3 3

The%e is f%e<uent c%iticis$ of the sec%ec: in 7hich ne4otiation 7ith fo%ei4n po7e%son nea%l: all subects is conce%ne/. This& it is clai$e/& is inco$patible 7ith the

substance of /e$oc%ac:. As e3p%esse/ b: one 7%ite%& )t can be sai/ that the%e is no

$o%e %i4i/ s:ste$ of silence an:7he%e in the 7o%l/. @E.. +oun4& (oo=in4 Behin/ the

Censo%ship& . B. (ipincott Co.& 1H#8 P%esi/ent Jilson in sta%tin4 his eFo%ts fo% the

conclusion of the Jo%l/ Ja% /ecla%e/ that 7e $ust ha*e open co*enants& openl:

a%%i*e/ at. e <uic=l: aban/one/ his thou4ht.

No one 7ho has stu/ie/ the <uestion belie*es that such a $etho/ of publicit: is

possible. )n the $o$ent that ne4otiations a%e sta%te/& p%essu%e 4%oups atte$pt to$uscle in. An ill0ti$e/ speech b: one of the pa%ties o% a f%an= /ecla%ation of the

concession 7hich a%e e3acte/ o% oFe%e/ on both si/es 7oul/ <uic=l: lea/ to a

7i/esp%ea/ p%opa4an/a to bloc= the ne4otiations. Afte% a t%eat: has been /%afte/

an/ its te%$s a%e full: publishe/& the%e is a$ple oppo%tunit: fo% /iscussion befo%e it

is app%o*e/. @The Ne7 A$e%ican Go*e%n$ent an/ )ts Jo%=s& a$es T. +oun4& "th

E/ition& p. 1H" @E$phasis an/ un/e%sco%in4 supplie/

Still in PMP, *. Man4lapus& the Cou%t a/opte/ the /oct%ine in U.S. *. Cu%tiss0J%i4ht

E3po%t Co%p. that the P%esi/ent is the sole o%4an of the nation in its ne4otiations7ith fo%ei4n count%ies&*i>2

3 3 3 )n this *ast e3te%nal %eal$& 7ith its i$po%tant& co$plicate/& /elicate an/

$anifol/ p%oble$s& the P%esi/ent alone has the po7e% to spea= o% listen as a

%ep%esentati*e of the nation. e $a=es t%eaties 7ith the a/*ice an/ consent of the

SenateI but he alone ne4otiates. )nto the 6el/ of ne4otiation the Senate cannot

int%u/eI an/ Con4%ess itself is po7e%less to in*a/e it. As Ma%shall sai/ in his 4%eat

a%4u$ents of Ma%ch & 18& in the ouse of Rep%esentati*es& The P%esi/ent is the

sole o%4an of the nation in its e3te%nal %elations& an/ its sole %ep%esentati*e 7ithfo%ei4n nations. Annals& !th Con4.& col. !1#Q @E$phasis supplie/I un/e%sco%in4 in

the o%i4inal

Consi/e%in4 that the info%$ation sou4ht th%ou4h the th%ee @# <uestions subect of

this Petition in*ol*es the P%esi/ent;s /ealin4s 7ith a fo%ei4n nation& 7ith $o%e



%eason& this Cou%t is 7a%: of app%o*in4 the *ie7 that Con4%ess $a: pe%e$pto%il:

in<ui%e into not onl: o5cial& /ocu$ente/ acts of the P%esi/ent but e*en he%

con6/ential an/ info%$al /iscussions 7ith he% close a/*iso%s on the p%ete3t that sai/

<uestions se%*e so$e *a4ue le4islati*e nee/. Re4a%/less of 7ho is in o5ce& this

Cou%t can easil: fo%esee un7ante/ conse<uences of subectin4 a Chief E3ecuti*e to

un%est%icte/ con4%essional in<ui%ies /one 7ith inc%ease/ f%e<uenc: an/ 4%eatpublicit:. No E3ecuti*e can eFecti*el: /ischa%4e constitutional functions in the face

of intense an/ unchec=e/ le4islati*e incu%sion into the co%e of the P%esi/ent;s

/ecision0$a=in4 p%ocess& 7hich ine*itabl: 7oul/ in*ol*e he% con*e%sations 7ith a

$e$be% of he% Cabinet.

Jith %espect to %espon/ent Co$$ittees; in*ocation of constitutional p%esc%iptions

%e4a%/in4 the %i4ht of the people to info%$ation an/ public accountabilit: an/

t%anspa%enc:& the Cou%t 6n/s nothin4 in these a%4u$ents to suppo%t %espon/ent

Co$$ittees; case.

The%e is no /ebate as to the i$po%tance of the constitutional %i4ht of the people to

info%$ation an/ the constitutional policies on public accountabilit: an/

t%anspa%enc:. These a%e the t7in postulates *ital to the eFecti*e functionin4 of a

/e$oc%atic 4o*e%n$ent. The citi>en%: can beco$e p%e: to the 7hi$s an/ cap%ices

of those to 7ho$ the po7e% has been /ele4ate/ if the: a%e /enie/ access to

info%$ation. An/ the policies on public accountabilit: an/ /e$oc%atic 4o*e%n$ent

7oul/ ce%tainl: be $e%e e$pt: 7o%/s if access to such info%$ation of public

conce%n is /enie/.

)n the case at ba%& this Cou%t& in uphol/in4 e3ecuti*e p%i*ile4e 7ith %espect to th%ee

@# speci6c <uestions& /i/ not in an: 7a: cu%b the public;s %i4ht to info%$ation o%

/i$inish the i$po%tance of public accountabilit: an/ t%anspa%enc:.

This Cou%t /i/ not %ule that the Senate has no po7e% to in*esti4ate the NBN P%oect

in ai/ of le4islation. The%e is nothin4 in the assaile/ -ecision that p%ohibits

%espon/ent Co$$ittees f%o$ in<ui%in4 into the NBN P%oect. The: coul/ continuethe in*esti4ation an/ e*en call petitione% Ne%i to testif: a4ain. e hi$self has

%epeate/l: e3p%esse/ his 7illin4ness to /o so. Ou% -ecision $e%el: e3clu/es f%o$

the scope of %espon/ents; in*esti4ation the th%ee @# <uestions that elicit ans7e%s

co*e%e/ b: e3ecuti*e p%i*ile4e an/ %ules that petitione% cannot be co$pelle/ to

appea% befo%e %espon/ents to ans7e% the sai/ <uestions. Je ha*e /iscusse/ the

%easons 7h: these ans7e%s a%e co*e%e/ b: e3ecuti*e p%i*ile4e. That the%e is a



%eco4ni>e/ public inte%est in the con6/entialit: of such info%$ation is a %eco4ni>e/

p%inciple in othe% /e$oc%atic States. To put it si$pl:& the %i4ht to info%$ation is not

an absolute %i4ht.

)n/ee/& the constitutional p%o*isions cite/ b: %espon/ent Co$$ittees /o not

espouse an absolute %i4ht to info%$ation. B: thei% 7o%/in4& the intention of the

,%a$e%s to subect such %i4ht to the %e4ulation of the la7 is un$ista=able. The

hi4hli4hte/ po%tions of the follo7in4 p%o*isions sho7 the ob*ious li$itations on the

%i4ht to info%$ation& thus2

A%ticle )))& Sec. . The %i4ht of the people to info%$ation on $atte%s of public conce%n

shall be %eco4ni>e/. Access to o5cial %eco%/s& an/ to /ocu$ents& an/ pape%s

pe%tainin4 to o5cial %eco%/s& an/ to /ocu$ents& an/ pape%s pe%tainin4 to o5cial

acts& t%ansactions& o% /ecisions& as 7ell as to 4o*e%n$ent %esea%ch /ata use/ asbasis fo% polic: /e*elop$ent& shall be aFo%/e/ the citi>en& subect to such

li$itations as $a: be p%o*i/e/ b: la7.

A%ticle ))& Sec. '8. Subect to %easonable con/itions p%esc%ibe/ b: la7& the State

a/opts an/ i$ple$ents a polic: of full public /isclosu%e of all its t%ansactions

in*ol*in4 public inte%est. @E$phasis supplie/

)n Cha*e> *. P%esi/ential Co$$ission on Goo/ Go*e%n$ent&" it 7as state/ that

the%e a%e no speci6c la7s p%esc%ibin4 the e3act li$itations 7ithin 7hich the %i4ht

$a: be e3e%cise/ o% the co%%elati*e state /ut: $a: be obli4e/. Nonetheless& it

enu$e%ate/ the %eco4ni>e/ %est%ictions to such %i4hts& a$on4 the$2 @1 national

secu%it: $atte%s& @' t%a/e sec%ets an/ ban=in4 t%ansactions& @# c%i$inal $atte%s&

an/ @" othe% con6/ential info%$ation. National secu%it: $atte%s inclu/e state

sec%ets %e4a%/in4 $ilita%: an/ /iplo$atic $atte%s& as 7ell as info%$ation on inte%0

4o*e%n$ent e3chan4es p%io% to the conclusion of t%eaties an/ e3ecuti*e

a4%ee$ents. )t 7as fu%the% hel/ that e*en 7he%e the%e is no nee/ to p%otect such

state sec%ets& the: $ust be e3a$ine/ in st%ict con6/ence an/ 4i*en sc%upulous

p%otection.

)nci/entall:& the %i4ht p%i$a%il: in*ol*e/ he%e is the %i4ht of %espon/ent Co$$ittees

to obtain info%$ation alle4e/l: in ai/ of le4islation& not the people;s %i4ht to public

info%$ation. This is the %eason 7h: 7e st%esse/ in the assaile/ -ecision the

/istinction bet7een these t7o %i4hts. As lai/ /o7n in Senate *. E%$ita& the /e$an/



of a citi>en fo% the p%o/uction of /ocu$ents pu%suant to his %i4ht to info%$ation

/oes not ha*e the sa$e obli4ato%: fo%ce as a subpoena /uces tecu$ issue/ b:

Con4%ess an/ neithe% /oes the %i4ht to info%$ation 4%ant a citi>en the po7e% to

e3act testi$on: f%o$ 4o*e%n$ent o5cials. As pointe/ out& these %i4hts belon4 to

Con4%ess& not to the in/i*i/ual citi>en. )t is 7o%th $entionin4 at this unctu%e that

the pa%ties he%e a%e %espon/ent Co$$ittees an/ petitione% Ne%i an/ that the%e 7asno p%io% %e<uest fo% info%$ation on the pa%t of an: in/i*i/ual citi>en. This Cou%t 7ill

not be s7a:e/ b: atte$pts to blu% the /istinctions bet7een the (e4islatu%es %i4ht to

info%$ation in a le4iti$ate le4islati*e in<ui%: an/ the publics %i4ht to info%$ation.

,o% cla%it:& it $ust be e$phasi>e/ that the assaile/ -ecision /i/ not enoin

%espon/ent Co$$ittees f%o$ in<ui%in4 into the NBN P%oect. All that is e3pecte/

f%o$ the$ is to %espect $atte%s that a%e co*e%e/ b: e3ecuti*e p%i*ile4e.

))).

Respon/ent Co$$ittees ,aile/ to Sho7 That

the Co$$unications Elicite/ b: the Th%ee Luestions

A%e C%itical to the E3e%cise of thei% ,unctions

)n thei% Motion fo% Reconsi/e%ation& %espon/ent Co$$ittees /e*ote an unusuall:

len4th: /iscussion on the pu%po%te/ le4islati*e natu%e of thei% enti%e in<ui%:& as

oppose/ to an o*e%si4ht in<ui%:.

At the outset& it $ust be cla%i6e/ that the -ecision /i/ not pass upon the natu%e of

%espon/ent Co$$ittees; in<ui%: into the NBN P%oect. To %eite%ate& this Cou%t

%eco4ni>es %espon/ent Co$$ittees; po7e% to in*esti4ate the NBN P%oect in ai/ of

le4islation. o7e*e%& this Cou%t cannot uphol/ the *ie7 that 7hen a constitutionall:

4ua%antee/ p%i*ile4e o% %i4ht is *ali/l: in*o=e/ b: a 7itness in the cou%se of ale4islati*e in*esti4ation& the le4islati*e pu%pose of %espon/ent Co$$ittees;

<uestions can be su5cientl: suppo%te/ b: the e3pe/ient of $entionin4 statutes

an/9o% pen/in4 bills to 7hich thei% in<ui%: as a 7hole $a: ha*e %ele*ance. The

u%isp%u/ential test lai/ /o7n b: this Cou%t in past /ecisions on e3ecuti*e p%i*ile4e is

that the p%esu$ption of p%i*ile4e can onl: be o*e%tu%ne/ b: a sho7in4 of

co$pellin4 nee/ fo% /isclosu%e of the info%$ation co*e%e/ b: e3ecuti*e p%i*ile4e.



)n the -ecision& the $ao%it: hel/ that the%e is no a/e<uate sho7in4 of a

co$pellin4 nee/ that 7oul/ ustif: the li$itation of the p%i*ile4e an/ of the

una*ailabilit: of the info%$ation else7he%e b: an app%op%iate in*esti4atin4

autho%it:. )n the Motion fo% Reconsi/e%ation& %espon/ent Co$$ittees a%4ue that theinfo%$ation elicite/ b: the th%ee @# <uestions a%e necessa%: in the /ischa%4e of

thei% le4islati*e functions& a$on4 the$& @a to consi/e% the th%ee @# pen/in4 Senate

Bills& an/ @b to cu%b 4%aft an/ co%%uption.

Je %e$ain unpe%sua/e/ b: %espon/ents; asse%tions.

)n U.S. *. Ni3on& the U.S. Cou%t hel/ that e3ecuti*e p%i*ile4e is subect to balancin4

a4ainst othe% inte%ests an/ it is necessa%: to %esol*e the co$petin4 inte%ests in a$anne% that 7oul/ p%ese%*e the essential functions of each b%anch. The%e& the

Cou%t 7ei4he/ bet7een p%esi/ential p%i*ile4e an/ the le4iti$ate clai$s of the

u/icial p%ocess. )n 4i*in4 $o%e 7ei4ht to the latte%& the Cou%t %ule/ that the

P%esi/ents 4ene%ali>e/ asse%tion of p%i*ile4e $ust :iel/ to the /e$onst%ate/&

speci6c nee/ fo% e*i/ence in a pen/in4 c%i$inal t%ial.

The Ni3on Cou%t %ule/ that an absolute an/ un<uali6e/ p%i*ile4e 7oul/ stan/ in the

7a: of the p%i$a%: constitutional /ut: of the u/icial B%anch to /o ustice in c%i$inal

p%osecutions. The sai/ Cou%t fu%the% %atiocinate/& th%ou4h its %ulin4 e3tensi*el:<uote/ in the ono%able Chief ustice Punos /issentin4 opinion& as follo7s2

... this p%esu$pti*e p%i*ile4e $ust be consi/e%e/ in li4ht of ou% histo%ic

co$$it$ent to the %ule of la7. This is no7he%e $o%e p%ofoun/l: $anifest than in

ou% *ie7 that the t7ofol/ ai$ @of c%i$inal ustice is that 4uil/ shall not escape o%

innocence suFe%. Be%4e% *. Unite/ States& 'H? U.S.& at 88& ?? S.Ct.& at !##. Je ha*e

electe/ to e$plo: an a/*e%sa%: s:ste$ of c%i$inal ustice in 7hich the pa%ties

contest all issues befo%e a cou%t of la7. The nee/ to /e*elop all %ele*ant facts in the

a/*e%sa%: s:ste$ is both fun/a$ental an/ co$p%ehensi*e. The en/s of c%i$inal ustice 7oul/ be /efeate/ if u/4$ents 7e%e to be foun/e/ on a pa%tial o%

speculati*e p%esentation of the facts. The *e%: inte4%it: of the u/icial s:ste$ an/

public con6/ence in the s:ste$ /epen/ on full /isclosu%e of all the facts& 7ithin the

f%a$e7o%= of the %ules of e*i/ence. To ensu%e that ustice is /one& it is i$pe%ati*e to

the function of cou%ts that co$pulso%: p%ocess be a*ailable fo% the p%o/uction of

e*i/ence nee/e/ eithe% b: the p%osecution o% b: the /efense.



333 333 333

The %i4ht to the p%o/uction of all e*i/ence at a c%i$inal t%ial si$ila%l: hasconstitutional /i$ensions. The Si3th A$en/$ent e3plicitl: confe%s upon e*e%:

/efen/ant in a c%i$inal t%ial the %i4ht to be conf%onte/ 7ith the 7itness a4ainst hi$

an/ to ha*e co$pulso%: p%ocess fo% obtainin4 7itnesses in his fa*o%. Mo%eo*e%& the

,ifth A$en/$ent also 4ua%antees that no pe%son shall be /ep%i*e/ of libe%t: 7ithout

/ue p%ocess of la7. )t is the $anifest /ut: of the cou%ts to *in/icate those

4ua%antees& an/ to acco$plish that it is essential that all %ele*ant an/ a/$issible

e*i/ence be p%o/uce/.

)n this case 7e $ust 7ei4h the i$po%tance of the 4ene%al p%i*ile4e of con6/entialit:of P%esi/ential co$$unications in pe%fo%$ance of the P%esi/ents %esponsibilities

a4ainst the in%oa/s of such a p%i*ile4e on the fai% a/$inist%ation of c%i$inal ustice.

@e$phasis supplie/

333 333 333

...the allo7ance of the p%i*ile4e to 7ithhol/ e*i/ence that is /e$onst%abl: %ele*ant

in a c%i$inal t%ial 7oul/ cut /eepl: into the 4ua%antee of /ue p%ocess of la7 an/4%a*el: i$pai% the basic function of the cou%ts. A P%esi/ents ac=no7le/4e/ nee/ fo%

con6/entialit: in the co$$unications of his o5ce is 4ene%al in natu%e& 7he%eas the

constitutional nee/ fo% p%o/uction of %ele*ant e*i/ence in a c%i$inal p%ocee/in4 is

speci6c an/ cent%al to the fai% a/u/ication of a pa%ticula% c%i$inal case in the

a/$inist%ation of ustice. Jithout access to speci6c facts a c%i$inal p%osecution $a:

be totall: f%ust%ate/. The P%esi/ents b%oa/ inte%est in con6/entialit: of

co$$unication 7ill not be *itiate/ b: /isclosu%e of a li$ite/ nu$be% of

con*e%sations p%eli$ina%il: sho7n to ha*e so$e bea%in4 on the pen/in4 c%i$inal

cases.

Je conclu/e that 7hen the 4%oun/ fo% asse%tin4 p%i*ile4e as to subpoenae/

$ate%ials sou4ht fo% use in a c%i$inal t%ial is base/ onl: on the 4ene%ali>e/ inte%est

in con6/entialit:& it cannot p%e*ail o*e% the fun/a$ental /e$an/s of /ue p%ocess of

la7 in the fai% a/$inist%ation of c%i$inal ustice. The 4ene%ali>e/ asse%tion of



p%i*ile4e $ust :iel/ to the /e$onst%ate/& speci6c nee/ fo% e*i/ence in a pen/in4

c%i$inal t%ial. @e$phasis supplie/

)n the case at ba%& 7e a%e not conf%onte/ 7ith a cou%t;s nee/ fo% facts in o%/e% to

a/u/4e liabilit: in a c%i$inal case but %athe% 7ith the Senate;s nee/ fo% info%$ation

in %elation to its le4islati*e functions. This lea/s us to consi/e% once a4ain ust ho7

c%itical is the subect info%$ation in the /ischa%4e of %espon/ent Co$$ittees;

functions. The bu%/en to sho7 this is on the %espon/ent Co$$ittees& since the:

see= to int%u/e into the sphe%e of co$petence of the P%esi/ent in o%/e% to 4athe%

info%$ation 7hich& acco%/in4 to sai/ %espon/ents& 7oul/ ai/ the$ in c%aftin4

le4islation.

Senate Select Co$$ittee on P%esi/ential Ca$pai4n Acti*ities *. Ni3on"1 e3poun/e/

on the natu%e of a le4islati*e in<ui%: in ai/ of le4islation in this 7ise2

The su5cienc: of the Co$$ittees sho7in4 of nee/ has co$e to /epen/& the%efo%e&

enti%el: on 7hethe% the subpoenae/ $ate%ials a%e c%itical to the pe%fo%$ance of its

le4islati*e functions. The%e is a clea% /iFe%ence bet7een Con4%ess le4islati*e tas=s

an/ the %esponsibilit: of a 4%an/ u%:& o% an: institution en4a4e/ in li=e functions.

Jhile fact06n/in4 b: a le4islati*e co$$ittee is un/eniabl: a pa%t of its tas=&

le4islati*e u/4$ents no%$all: /epen/ $o%e on the p%e/icte/ conse<uences of

p%opose/ le4islati*e actions an/ thei% political acceptabilit:& than on p%ecise

%econst%uction of past e*entsI Con4%ess f%e<uentl: le4islates on the basis ofconictin4 info%$ation p%o*i/e/ in its hea%in4s. )n cont%ast& the %esponsibilit: of the

4%an/ u%: tu%ns enti%el: on its abilit: to /ete%$ine 7hethe% the%e is p%obable cause

to belie*e that ce%tain na$e/ in/i*i/uals /i/ o% /i/ not co$$it speci6c c%i$es. )f&

fo% e3a$ple& as in Ni3on *. Si%ica& one of those c%i$es is pe%u%: conce%nin4 the

content of ce%tain con*e%sations& the 4%an/ u%:s nee/ fo% the $ost p%ecise

e*i/ence& the e3act te3t of o%al state$ents %eco%/e/ in thei% o%i4inal fo%$& is

un/eniable. Je see no co$pa%able nee/ in the le4islati*e p%ocess& at least not in

the ci%cu$stances of this case. )n/ee/& 7hate*e% fo%ce the%e $i4ht once ha*e been

in the Co$$ittees a%4u$ent that the subpoenae/ $ate%ials a%e necessa%: to its

le4islati*e u/4$ents has been substantiall: un/e%$ine/ b: subse<uent e*ents.@E$phasis supplie/

Clea%l:& the nee/ fo% ha%/ facts in c%aftin4 le4islation cannot be e<uate/ 7ith the

co$pellin4 o% /e$onst%ati*el: c%itical an/ speci6c nee/ fo% facts 7hich is so

essential to the u/icial po7e% to a/u/icate actual cont%o*e%sies. Also& the ba%e



stan/a%/ of pe%tinenc: set in A%nault cannot be li4htl: applie/ to the instant case&

7hich unli=e A%nault in*ol*es a conict bet7een t7o @' sepa%ate& co0e<ual an/

coo%/inate B%anches of the Go*e%n$ent.

Jhate*e% test 7e $a: appl:& the sta%tin4 point in %esol*in4 the conictin4 clai$s

bet7een the E3ecuti*e an/ the (e4islati*e B%anches is the %eco4ni>e/ e3istence of

the p%esu$pti*e p%esi/ential co$$unications p%i*ile4e. This is conce/e/ e*en in

the -issentin4 Opinion of the ono%able Chief ustice Puno& 7hich states2

A ha%/ loo= at Senate *. E%$ita ou4ht to :iel/ the conclusion that it besto7e/ a

<uali6e/ p%esu$ption in fa*o% of the P%esi/ential co$$unications p%i*ile4e. As

sho7n in the p%e*ious /iscussion& U.S. *. Ni3on& as 7ell as the othe% %elate/ Ni3on

cases Si%ica an/ Senate Select Co$$ittee on P%esi/ential Ca$pai4n Acti*ities& et

al.& *. Ni3on in the -.C. Cou%t of Appeals& as 7ell as subse<uent cases all %eco4ni>ethat the%e is a p%esu$pti*e p%i*ile4e in fa*o% of P%esi/ential co$$unications. The

Al$onte case <uote/ U.S. *. Ni3on an/ %eco4ni>e/ a p%esu$ption in fa*o% of

con6/entialit: of P%esi/ential co$$unications.

The p%esu$ption in fa*o% of P%esi/ential co$$unications puts the bu%/en on the

%espon/ent Senate Co$$ittees to o*e%tu%n the p%esu$ption b: /e$onst%atin4 thei%

speci6c nee/ fo% the info%$ation to be elicite/ b: the ans7e%s to the th%ee @#

<uestions subect of this case& to enable the$ to c%aft le4islation. e%e& the%e is

si$pl: a 4ene%ali>e/ asse%tion that the info%$ation is pe%tinent to the e3e%cise ofthe po7e% to le4islate an/ a b%oa/ an/ non0speci6c %efe%ence to pen/in4 Senate

bills. )t is not clea% 7hat $atte%s %elatin4 to these bills coul/ not be /ete%$ine/

7ithout the sai/ info%$ation sou4ht b: the th%ee @# <uestions. As co%%ectl: pointe/

out b: the ono%able ustice -ante O. Tin4a in his Sepa%ate Concu%%in4 Opinion2

Q)f %espon/ents a%e ope%atin4 un/e% the p%e$ise that the p%esi/ent an/9o% he%

e3ecuti*e o5cials ha*e co$$itte/ 7%on4/oin4s that nee/ to be co%%ecte/ o%

p%e*ente/ f%o$ %ecu%%in4 b: %e$e/ial le4islation& the ans7e% to those th%ee

<uestions 7ill not necessa%il: bolste% o% inhibit %espon/ents f%o$ p%ocee/in4 7ithsuch le4islation. The: coul/ easil: p%esu$e the 7o%st of the p%esi/ent in enactin4

such le4islation.

,o% su%e& a factual basis fo% situations co*e%e/ b: bills is not c%iticall: nee/e/ befo%e

le4islati*es bo/ies can co$e up 7ith %ele*ant le4islation unli=e in the a/u/ication



of cases b: cou%ts of la7. )nte%estin4l:& /u%in4 the O%al A%4u$ent befo%e this Cou%t&

the counsel fo% %espon/ent Co$$ittees i$plie/l: a/$itte/ that the Senate coul/

still co$e up 7ith le4islations e*en 7ithout petitione% ans7e%in4 the th%ee @#

<uestions. )n othe% 7o%/s& the info%$ation bein4 elicite/ is not so c%itical afte% all.

Thus2

C)E, UST)CE PUNO

So can :ou tell the Cou%t ho7 c%itical a%e these <uestions to the la7$a=in4 function

of the Senate. ,o% instance& <uestion Nu$be% 1 7hethe% the P%esi/ent follo7e/ up

the NBN p%oect. Acco%/in4 to the othe% counsel this <uestion has al%ea/: been

as=e/& is that co%%ect

ATT+. AGAB)N

Jell& the <uestion has been as=e/ but it 7as not ans7e%e/& +ou% ono%.

C)E, UST)CE PUNO

+es. But $: <uestion is ho7 c%itical is this to the la7$a=in4 function of the Senate

ATT+. AGAB)N

) belie*e it is c%itical& +ou% ono%.

C)E, UST)CE PUNO

Jh:



ATT+. AGAB)N

,o% instance& 7ith %espect to the p%opose/ Bill of Senato% Mi%ia$ Santia4o& she

7oul/ li=e to in/o%se a Bill to inclu/e E3ecuti*e A4%ee$ents ha/ been use/ as a

/e*ice to the ci%cu$*entin4 the P%ocu%e$ent (a7.

C)E, UST)CE PUNO

But the <uestion is ust follo7in4 it up.

ATT+. AGAB)N

) belie*e that $a: be the initial <uestion& +ou% ono%& because if 7e loo= at this

p%oble$ in its factual settin4 as counsel fo% petitione% has obse%*e/& the%e a%e

inti$ations of a b%ibe%: scan/al in*ol*in4 hi4h 4o*e%n$ent o5cials.

C)E, UST)CE PUNO

A4ain& about the secon/ <uestion& 7e%e :ou /ictate/ to p%io%iti>e this DTE& is that

c%itical to the la7$a=in4 function of the Senate Jill it %esult to the failu%e of the

Senate to cobble a Bill 7ithout this <uestion

ATT+. AGAB)N

) thin= it is c%itical to la: the factual foun/ations fo% a p%opose/ a$en/$ent to theP%ocu%e$ent (a7& +ou% ono%& because the petitione% ha/ al%ea/: testi6e/ that he

7as oFe%e/ a P' Million b%ibe& so if he 7as oFe%e/ a P' Million b%ibe it is

possible that othe% 4o*e%n$ent o5cials 7ho ha/ so$ethin4 to /o 7ith the app%o*al

of the cont%act 7oul/ be oFe%e/ the sa$e a$ount of b%ibes.



C)E, UST)CE PUNO

A4ain& that is speculati*e.

ATT+. AGAB)N

That is 7h: the: 7ant to continue 7ith the in*esti4ation& +ou% ono%.

C)E, UST)CE PUNO

o7 about the thi%/ <uestion& 7hethe% the P%esi/ent sai/ to 4o ahea/ an/ app%o*e

the p%oect afte% bein4 tol/ about the alle4e/ b%ibe. o7 c%itical is that to the

la7$a=in4 function of the Senate An/ the <uestion is $a: the: c%aft a Bill a

%e$e/ial la7 7ithout fo%cin4 petitione% Ne%i to ans7e% this <uestion

ATT+. AGAB)N

Jell& the: can c%aft it& +ou% ono%& base/ on $e%e speculation. An/ soun/ le4islation

%e<ui%es that a p%opose/ Bill shoul/ ha*e so$e basis in fact."'

The failu%e of the counsel fo% %espon/ent Co$$ittees to pinpoint the speci6c nee/

fo% the info%$ation sou4ht o% ho7 the 7ithhol/in4 of the info%$ation sou4ht 7ill

hin/e% the acco$plish$ent of thei% le4islati*e pu%pose is *e%: e*i/ent in the abo*e

o%al e3chan4es. -ue to the failu%e of the %espon/ent Co$$ittees to successfull:

/ischa%4e this bu%/en& the p%esu$ption in fa*o% of con6/entialit: of p%esi/ential

co$$unication stan/s. The i$plication of the sai/ p%esu$ption& li=e an: othe%& is to/ispense 7ith the bu%/en of p%oof as to 7hethe% the /isclosu%e 7ill si4ni6cantl:

i$pai% the P%esi/ent;s pe%fo%$ance of he% function. Nee/less to state this is

assu$e/& b: *i%tue of the p%esu$ption.



Anent %espon/ent Co$$ittees; be7ailin4 that the: 7oul/ ha*e to speculate

%e4a%/in4 the <uestions co*e%e/ b: the p%i*ile4e& this /oes not e*ince a co$pellin4

nee/ fo% the info%$ation sou4ht. )n/ee/& Senate Select Co$$ittee on P%esi/ential

Ca$pai4n Acti*ities *. Ni3on"# hel/ that 7hile fact06n/in4 b: a le4islati*e

co$$ittee is un/eniabl: a pa%t of its tas=& le4islati*e u/4$ents no%$all: /epen/

$o%e on the p%e/icte/ conse<uences of p%opose/ le4islati*e actions an/ thei%political acceptabilit: than on a p%ecise %econst%uction of past e*ents. )t a//e/ that&

no%$all:& Con4%ess le4islates on the basis of conictin4 info%$ation p%o*i/e/ in its

hea%in4s. Je cannot subsc%ibe to the %espon/ent Co$$ittees; self0/efeatin4

p%oposition that 7ithout the ans7e%s to the th%ee @# <uestions obecte/ to as

p%i*ile4e/& the /istin4uishe/ $e$be%s of the %espon/ent Co$$ittees cannot

intelli4entl: c%aft le4islation.

Anent the function to cu%b 4%aft an/ co%%uption& it $ust be st%esse/ that %espon/ent

Co$$ittees; nee/ fo% info%$ation in the e3e%cise of this function is not asco$pellin4 as in instances 7hen the pu%pose of the in<ui%: is le4islati*e in natu%e.

This is because cu%bin4 4%aft an/ co%%uption is $e%el: an o*e%si4ht function of

Con4%ess."" An/ if this is the p%i$a%: obecti*e of %espon/ent Co$$ittees in as=in4

the th%ee @# <uestions co*e%e/ b: p%i*ile4e& it $a: e*en cont%a/ict thei% clai$ that

thei% pu%pose is le4islati*e in natu%e an/ not o*e%si4ht. )n an: e*ent& 7hethe% o% not

in*esti4atin4 4%aft an/ co%%uption is a le4islati*e o% o*e%si4ht function of Con4%ess&

%espon/ent Co$$ittees; in*esti4ation cannot t%ans4%ess boun/s set b: the

Constitution.

)n Ben4>on& %. *. Senate Blue Ribbon Co$$ittee&"? this Cou%t %ule/2

The allocation of constitutional boun/a%ies is a tas= that this Cou%t $ust pe%fo%$

un/e% the Constitution. Mo%eo*e%& as hel/ in a %ecent case& the political <uestion

/oct%ine neithe% inte%poses an obstacle to u/icial /ete%$ination of the %i*al clai$s.

The u%is/iction to /eli$it constitutional boun/a%ies has been 4i*en to this Cou%t. )t

cannot ab/icate that obli4ation $an/ate/ b: the 1H8 Constitution& althou4h sai/

p%o*ision b: no $eans /oes a7a: 7ith the applicabilit: of the p%inciple in

app%op%iate cases."! @E$phasis supplie/

The%e& the Cou%t fu%the% %atiocinate/ that the conte$plate/ in<ui%: b: %espon/ent

Co$$ittee is not %eall: in ai/ of le4islation; because it is not %elate/ to a pu%pose

7ithin the u%is/iction of Con4%ess& since the ai$ of the in*esti4ation is to 6n/ out

7hethe% o% not the %elati*es of the P%esi/ent o% M%. Rica%/o (opa ha/ *iolate/



Section ? of R.A. No. #1H& the Anti0G%aft an/ Co%%upt P%actices Act& a $atte% that

appea%s $o%e 7ithin the p%o*ince of the cou%ts %athe% than of the (e4islatu%e."

@E$phasis an/ un/e%sco%in4 supplie/

The 4ene%al th%ust an/ the teno% of the th%ee @# <uestions is to t%ace the alle4e/

b%ibe%: to the O5ce of the P%esi/ent."8 Jhile it $a: be a 7o%th: en/ea*o% to

in*esti4ate the potential culpabilit: of hi4h 4o*e%n$ent o5cials& inclu/in4 the

P%esi/ent& in a 4i*en 4o*e%n$ent t%ansaction& it is si$pl: not a tas= fo% the Senate

to pe%fo%$. The %ole of the (e4islatu%e is to $a=e la7s& not to /ete%$ine an:one;s

4uilt of a c%i$e o% 7%on4/oin4. Ou% Constitution has not besto7e/ upon the

(e4islatu%e the latte% %ole. ust as the u/icia%: cannot le4islate& neithe% can the

(e4islatu%e a/u/icate o% p%osecute.

Respon/ent Co$$ittees clai$ that the: a%e con/uctin4 an in<ui%: in ai/ ofle4islation an/ a sea%ch fo% t%uth& 7hich in %espon/ent Co$$ittees; *ie7 appea%s

to be e<uate/ 7ith the sea%ch fo% pe%sons %esponsible fo% ano$alies in

4o*e%n$ent cont%acts.

No $atte% ho7 noble the intentions of %espon/ent Co$$ittees a%e& the: cannot

assu$e the po7e% %epose/ upon ou% p%osecuto%ial bo/ies an/ cou%ts. The

/ete%$ination of 7ho is9a%e liable fo% a c%i$e o% ille4al acti*it:& the in*esti4ation of

the %ole pla:e/ b: each o5cial& the /ete%$ination of 7ho shoul/ be hale/ to cou%t

fo% p%osecution an/ the tas= of co$in4 up 7ith conclusions an/ 6n/in4 of facts%e4a%/in4 ano$alies& especiall: the /ete%$ination of c%i$inal 4uilt& a%e not functions

of the Senate. Con4%ess is neithe% a la7 enfo%ce$ent no% a t%ial a4enc:. Mo%eo*e%& it

bea%s st%essin4 that no in<ui%: is an en/ in itselfI it $ust be %elate/ to& an/ in

fu%the%ance of& a le4iti$ate tas= of the Con4%ess& i.e. le4islation. )n*esti4ations

con/ucte/ solel: to 4athe% inc%i$inato%: e*i/ence an/ punish those in*esti4ate/

a%e in/efensible. The%e is no Con4%essional po7e% to e3pose fo% the sa=e of

e3posu%e."H )n this %e4a%/& the p%onounce$ent in Ba%enblatt *. Unite/ States? is

inst%ucti*e& thus2

B%oa/ as it is& the po7e% is not& ho7e*e%& 7ithout li$itations. Since Con4%ess $a:

onl: in*esti4ate into the a%eas in 7hich it $a: potentiall: le4islate o% app%op%iate& it

cannot in<ui%e into $atte%s 7hich a%e 7ithin the e3clusi*e p%o*ince of one of the

othe% b%anches of the 4o*e%n$ent. (ac=in4 the u/icial po7e% 4i*en to the u/icia%:&

it cannot in<ui%e into $atte%s that a%e e3clusi*el: the conce%n of the u/icia%:.



Neithe% can it supplant the E3ecuti*e in 7hat e3clusi*el: belon4s to the E3ecuti*e.

@E$phasis supplie/.

At this unctu%e& it is i$po%tant to st%ess that co$plaints %elatin4 to the NBN P%oect

ha*e al%ea/: been 6le/ a4ainst P%esi/ent A%%o:o an/ othe% pe%sonalities befo%e the

O5ce of the O$bu/s$an. Un/e% ou% Constitution& it is the O$bu/s$an 7ho has the

/ut: to in*esti4ate an: act o% o$ission of an: public o5cial& e$plo:ee& o5ce o%

a4enc: 7hen such act o% o$ission appea%s to be ille4al& unust& i$p%ope%& o%

ine5cient.?1 The O5ce of the O$bu/s$an is the bo/: p%ope%l: e<uippe/ b: the

Constitution an/ ou% la7s to p%eli$ina%il: /ete%$ine 7hethe% o% not the alle4ations

of ano$al: a%e t%ue an/ 7ho a%e liable the%efo%. The sa$e hol/s t%ue fo% ou% cou%ts

upon 7hich the Constitution %eposes the /ut: to /ete%$ine c%i$inal 4uilt 7ith

6nalit:. )n/ee/& the %ules of p%oce/u%e in the O5ce of the O$bu/s$an an/ the

cou%ts a%e 7ell0/e6ne/ an/ ensu%e that the constitutionall: 4ua%antee/ %i4hts of all

pe%sons& pa%ties an/ 7itnesses ali=e& a%e p%otecte/ an/ safe4ua%/e/.

Shoul/ %espon/ent Co$$ittees unco*e% info%$ation %elate/ to a possible c%i$e in

the cou%se of thei% in*esti4ation& the: ha*e the constitutional /ut: to %efe% the

$atte% to the app%op%iate a4enc: o% b%anch of 4o*e%n$ent. Thus& the (e4islatu%e;s

nee/ fo% info%$ation in an in*esti4ation of 4%aft an/ co%%uption cannot be /ee$e/

co$pellin4 enou4h to pie%ce the con6/entialit: of info%$ation *ali/l: co*e%e/ b:

e3ecuti*e p%i*ile4e. As /iscusse/ abo*e& the (e4islatu%e can still le4islate on 4%aft

an/ co%%uption e*en 7ithout the info%$ation co*e%e/ b: the th%ee @# <uestions

subect of the petition.

Co%olla%il:& %espon/ent Co$$ittees ustif: thei% %eection of petitione%;s clai$ of

e3ecuti*e p%i*ile4e on the 4%oun/ that the%e is no p%i*ile4e 7hen the info%$ation

sou4ht $i4ht in*ol*e a c%i$e o% ille4al acti*it:& /espite the absence of an

a/$inist%ati*e o% u/icial /ete%$ination to that eFect. Si4ni6cantl:& ho7e*e%& in

Ni3on *. Si%ica&?' the sho7in4 %e<ui%e/ to o*e%co$e the p%esu$ption fa*o%in4

con6/entialit: tu%ne/& not on the natu%e of the p%esi/ential con/uct that the

subpoenae/ $ate%ial $i4ht %e*eal& but& instea/& on the natu%e an/ app%op%iateness

of the function in the pe%fo%$ance of 7hich the $ate%ial 7as sou4ht& an/ the /e4%eeto 7hich the $ate%ial 7as necessa%: to its ful6ll$ent.

Respon/ent Co$$ittees asse%t that Senate Select Co$$ittee on P%esi/ential

Ca$pai4n Acti*ities *. Ni3on /oes not appl: to the case at ba% because& unli=e in the

sai/ case& no i$peach$ent p%ocee/in4 has been initiate/ at p%esent. The Cou%t is



not pe%sua/e/. Jhile it is t%ue that no i$peach$ent p%ocee/in4 has been initiate/&

ho7e*e%& co$plaints %elatin4 to the NBN P%oect ha*e al%ea/: been 6le/ a4ainst

P%esi/ent A%%o:o an/ othe% pe%sonalities befo%e the O5ce of the O$bu/s$an. As

the Cou%t has sai/ ea%lie%& the p%osecuto%ial an/ u/icial a%$s of 4o*e%n$ent a%e the

bo/ies e<uippe/ an/ $an/ate/ b: the Constitution an/ ou% la7s to /ete%$ine

7hethe% o% not the alle4ations of ano$al: in the NBN P%oect a%e t%ue an/& if so& 7hoshoul/ be p%osecute/ an/ penali>e/ fo% c%i$inal con/uct.

(e4islati*e in<ui%ies& unli=e cou%t p%ocee/in4s& a%e not subect to the e3actin4

stan/a%/s of e*i/ence essential to a%%i*e at accu%ate factual 6n/in4s to 7hich to

appl: the la7. ence& Section 1 of the Senate Rules of P%oce/u%e Go*e%nin4

)n<ui%ies in Ai/ of (e4islation p%o*i/es that technical %ules of e*i/ence applicable to

u/icial p%ocee/in4s 7hich /o not aFect substanti*e %i4hts nee/ not be obse%*e/ b:

the Co$$ittee. Cou%t %ules 7hich p%ohibit lea/in4& h:pothetical& o% %epetiti*e

<uestions o% <uestions callin4 fo% a hea%sa: ans7e%& to na$e a fe7& /o not appl: toa le4islati*e in<ui%:. E*e%: pe%son& f%o$ the hi4hest public o5cial to the $ost

o%/ina%: citi>en& has the %i4ht to be p%esu$e/ innocent until p%o*en 4uilt: in p%ope%

p%ocee/in4s b: a co$petent cou%t o% bo/:.

)

Respon/ent Co$$ittees Co$$itte/ G%a*e

Abuse of -isc%etion in )ssuin4 the Conte$pt O%/e%

Respon/ent Co$$ittees insist that the: /i/ not co$$it 4%a*e abuse of /isc%etion in

issuin4 the conte$pt o%/e% because @1 the%e is no le4iti$ate clai$ of e3ecuti*e

p%i*ile4eI @' the: /i/ not *iolate the %e<ui%e$ents lai/ /o7n in Senate *. E%$itaI @#

the: issue/ the conte$pt o%/e% in acco%/ance 7ith thei% inte%nal RulesI @" the: /i/

not *iolate the %e<ui%e$ent un/e% A%ticle )& Section '1 of the Constitution %e<ui%in4

the publication of thei% RulesI an/ @? thei% issuance of the conte$pt o%/e% is not

a%bit%a%: o% p%ecipitate.

Je %ea5%$ ou% ea%lie% %ulin4.



The le4iti$ac: of the clai$ of e3ecuti*e p%i*ile4e ha*in4 been full: /iscusse/ in the

p%ece/in4 pa4es& 7e see no %eason to /iscuss it once a4ain.

Respon/ent Co$$ittees; secon/ a%4u$ent %ests on the *ie7 that the %ulin4 in

Senate *. E%$ita& %e<ui%in4 in*itations o% subpoenas to contain the possible nee/e/

statute 7hich p%o$pte/ the nee/ fo% the in<ui%: alon4 7ith the usual in/ication of

the subect of in<ui%: an/ the <uestions %elati*e to an/ in fu%the%ance the%eof is not

p%o*i/e/ fo% b: the Constitution an/ is $e%el: an obite% /ictu$.

On the cont%a%:& the Cou%t sees the %ationale an/ necessit: of co$pliance 7ith

these %e<ui%e$ents.

An unconst%aine/ con4%essional in*esti4ati*e po7e%& li=e an unchec=e/ E3ecuti*e&

4ene%ates its o7n abuses. Conse<uentl:& clai$s that the in*esti4ati*e po7e% of

Con4%ess has been abuse/ @o% has the potential fo% abuse ha*e been %aise/ $an:

ti$es.?# Constant e3posu%e to con4%essional subpoena ta=es its toll on the abilit: of

the E3ecuti*e to function eFecti*el:. The %e<ui%e$ents set fo%th in Senate *. E%$ita

a%e $o/est $echanis$s that 7oul/ not un/ul: li$it Con4%ess; po7e%. The

le4islati*e in<ui%: $ust be con6ne/ to pe%$issible a%eas an/ thus& p%e*ent the

%o*in4 co$$issions %efe%%e/ to in the U.S. case& ilbou%n *. Tho$pson.?" (i=e7ise&

7itnesses ha*e thei% constitutional %i4ht to /ue p%ocess. The: shoul/ be a/e<uatel:

info%$e/ 7hat $atte%s a%e to be co*e%e/ b: the in<ui%:. )t 7ill also allo7 the$ to

p%epa%e the pe%tinent info%$ation an/ /ocu$ents. To ou% $in/& these %e<ui%e$entsconce/e too little political costs o% bu%/ens on the pa%t of Con4%ess 7hen *ie7e/

*is00*is the i$$ensit: of its po7e% of in<ui%:. The lo4ic of these %e<ui%e$ents is

7ell a%ticulate/ in the stu/: con/ucte/ b: Jillia$ P. Ma%shall&?? to 7it2

A secon/ conce%n that $i4ht be a//%esse/ is that the cu%%ent s:ste$ allo7s

co$$ittees to continuall: in*esti4ate the E3ecuti*e 7ithout const%aint. One p%ocess

solution a//%essin4 this conce%n is to %e<ui%e each in*esti4ation be tie/ to a clea%l:

state/ pu%pose. At p%esent& the cha%te%s of so$e con4%essional co$$ittees a%e so

b%oa/ that *i%tuall: an: $atte% in*ol*in4 the E3ecuti*e can be const%ue/ to fall7ithin thei% p%o*ince. Acco%/in4l:& in*esti4ations can p%ocee/ 7ithout a%ticulation of

speci6c nee/ o% pu%pose. A %e<ui%e$ent fo% a $o%e p%ecise cha%4e in o%/e% to be4in

an in<ui%: shoul/ i$$e/iatel: 7o%= to li$it the initial scope of the in*esti4ation an/

shoul/ also se%*e to contain the in*esti4ation once it is institute/. A//itionall:& to

the e3tent clea% state$ents of %ules cause le4islatu%es to pause an/ se%iousl:



consi/e% the constitutional i$plications of p%opose/ cou%ses of action in othe% a%eas&

the: 7oul/ se%*e that 4oal in the conte3t of con4%essional in*esti4ations as 7ell.

The =e: to this %efo%$ is in its /etails. A s:ste$ that allo7s a stan/in4 co$$ittee to

si$pl: a%ticulate its %easons to in*esti4ate p%o fo%$a /oes no $o%e than i$poses

$ini$al /%aftin4 bu%/ens. Rathe%& the s:ste$ $ust be /esi4ne/ in a $anne% that

i$poses actual bu%/ens on the co$$ittee to a%ticulate its nee/ fo% in*esti4ation

an/ allo7s fo% $eanin4ful /ebate about the $e%its of p%ocee/in4 7ith the

in*esti4ation. @E$phasis supplie/

Clea%l:& petitione%;s %e<uest to be fu%nishe/ an a/*ance cop: of <uestions is a

%easonable /e$an/ that shoul/ ha*e been 4%ante/ b: %espon/ent Co$$ittees.

Unfo%tunatel:& the Subpoena A/ Testi6can/u$ /ate/ No*e$be% 1#& ' $a/e no

speci6c %efe%ence to an: pen/in4 Senate bill. )t /i/ not also info%$ petitione% of the

<uestions to be as=e/. As it 7e%e& the subpoena $e%el: co$$an/e/ hi$ to testif:

on 7hat he =no7s %elati*e to the subect $atte% un/e% in<ui%:.

Anent the thi%/ a%4u$ent& %espon/ent Co$$ittees conten/ that thei% Rules of

P%oce/u%e Go*e%nin4 )n<ui%ies in Ai/ of (e4islation @the Rules a%e be:on/ the

%each of this Cou%t. Jhile it is t%ue that this Cou%t $ust %ef%ain f%o$ %e*ie7in4 theinte%nal p%ocesses of Con4%ess& as a co0e<ual b%anch of 4o*e%n$ent& ho7e*e%& 7hen

a constitutional %e<ui%e$ent e3ists& the Cou%t has the /ut: to loo= into Con4%ess;

co$pliance the%e7ith. Je cannot tu%n a blin/ e:e to possible *iolations of the

Constitution si$pl: out of cou%tes:. )n this %e4a%/& the p%onounce$ent in A%%o:o *.

-e enecia?! is enli4htenin4& thus2

Cases both he%e an/ ab%oa/& in *a%:in4 fo%$s of e3p%ession& all /en: to the cou%ts

the po7e% to in<ui%e into alle4ations that& in enactin4 a la7& a ouse of Con4%ess

faile/ to co$pl: 7ith its o7n %ules& in the absence of sho7in4 that the%e 7as a

*iolation of a constitutional p%o*ision o% the %i4hts of p%i*ate in/i*i/uals.

Unite/ States *. Ballin& oseph K Co.& the %ule 7as state/ thus2 The Constitution

e$po7e%s each ouse to /ete%$ine its %ules of p%ocee/in4s. )t $a: not b: its %ules

i4no%e constitutional %est%aints o% *iolate fun/a$ental %i4hts& an/ the%e shoul/ be a



%easonable %elation bet7een the $o/e o% $etho/ of p%ocee/in4 establishe/ b: the

%ule an/ the %esult 7hich is sou4ht to be attaine/.

)n the p%esent case& the Cou%t;s e3e%cise of its po7e% of u/icial %e*ie7 is 7a%%ante/

because the%e appea%s to be a clea% abuse of the po7e% of conte$pt on the pa%t of

%espon/ent Co$$ittees. Section 18 of the Rules p%o*i/es that2

The Co$$ittee& b: a *ote of $ao%it: of all its $e$be%s& $a: punish fo% conte$pt

an: 7itness befo%e it 7ho /isobe: an: o%/e% of the Co$$ittee o% %efuses to be

s7o%n o% to testif: o% to ans7e% p%ope% <uestions b: the Co$$ittee o% an: of its

$e$be%s. @E$phasis supplie/

)n the assaile/ -ecision& 7e sai/ that the%e is a clou/ of /oubt as to the *ali/it: of

the conte$pt o%/e% because /u%in4 the /elibe%ation of the th%ee @# %espon/ent

Co$$ittees& onl: se*en @ Senato%s 7e%e p%esent. This nu$be% coul/ ha%/l: ful6ll

the $ao%it: %e<ui%e$ent nee/e/ b: %espon/ent Co$$ittee on Accountabilit: of

Public O5ce%s an/ )n*esti4ations 7hich has a $e$be%ship of se*enteen @1

Senato%s an/ %espon/ent Co$$ittee on National -efense an/ Secu%it: 7hich has a

$e$be%ship of ei4hteen @18 Senato%s. Jith %espect to %espon/ent Co$$ittee on

T%a/e an/ Co$$e%ce 7hich has a $e$be%ship of nine @H Senato%s& onl: th%ee @#

$e$be%s 7e%e p%esent.? These facts p%o$pte/ us to <uote in the -ecision the

e3chan4es bet7een Senato%s Alan Pete% Ca:etano an/ A<uilino Pi$entel& %.

7he%eb: the fo%$e% %aise/ the issue of lac= of the %e<ui%e/ $ao%it: to /elibe%atean/ *ote on the conte$pt o%/e%.

Jhen as=e/ about such *otin4 /u%in4 the Ma%ch "& '8 hea%in4 befo%e this Cou%t&

Senato% ,%ancis Pan4ilinan state/ that an: /efect in the co$$ittee *otin4 ha/ been

cu%e/ because t7o0thi%/s of the Senato%s eFecti*el: si4ne/ fo% the Senate in

plena%: session.?8

Ob*iousl: the /elibe%ation of the %espon/ent Co$$ittees that le/ to the issuance of

the conte$pt o%/e% is a7e/. )nstea/ of bein4 sub$itte/ to a full /ebate b: all the

$e$be%s of the %espon/ent Co$$ittees& the conte$pt o%/e% 7as p%epa%e/ an/

the%eafte% p%esente/ to the othe% $e$be%s fo% si4nin4. As a %esult& the conte$pt

o%/e% 7hich 7as issue/ on anua%: #& '8 7as not a faithful %ep%esentation of the

p%ocee/in4s that too= place on sai/ /ate. Reco%/s clea%l: sho7 that not all of those



7ho si4ne/ the conte$pt o%/e% 7e%e p%esent /u%in4 the anua%: #& '8

/elibe%ation 7hen the $atte% 7as ta=en up.

Section '1& A%ticle ) of the Constitution states that2

The Senate o% the ouse of Rep%esentati*es o% an: of its %especti*e co$$ittees

$a: con/uct in<ui%ies in ai/ of le4islation in acco%/ance 7ith its /ul: publishe/

%ules of p%oce/u%e. The %i4hts of pe%son appea%in4 in o% aFecte/ b: such in<ui%ies

shall be %especte/. @E$phasis supplie/

All the li$itations e$bo/ie/ in the fo%e4oin4 p%o*ision fo%$ pa%t of the 7itness;

settle/ e3pectation. )f the li$itations a%e not obse%*e/& the 7itness; settle/e3pectation is shatte%e/. e%e& ho7 coul/ the%e be a $ao%it: *ote 7hen the

$e$be%s in atten/ance a%e not enou4h to a%%i*e at such $ao%it: Petitione% has

the %i4ht to e3pect that he can be cite/ in conte$pt onl: th%ou4h a $ao%it: *ote in

a p%ocee/in4 in 7hich the $atte% has been full: /elibe%ate/ upon. The%e is a 4%eate%

$easu%e of p%otection fo% the 7itness 7hen the conce%ns an/ obections of the

$e$be%s a%e full: a%ticulate/ in such p%ocee/in4. Je /o not belie*e that

%espon/ent Co$$ittees ha*e the /isc%etion to set asi/e thei% %ules an:ti$e the:

7ish. This is especiall: t%ue he%e 7he%e 7hat is in*ol*e/ is the conte$pt po7e%. )t

$ust be st%esse/ that the Rules a%e not p%o$ul4ate/ fo% thei% bene6t. Mo%e than

an:bo/: else& it is the 7itness 7ho has the hi4hest sta=e in the p%ope% obse%*ance

of the Rules.

a*in4 touche/ the subect of the Rules& 7e no7 p%ocee/ to %espon/ent

Co$$ittees; fou%th a%4u$ent. Respon/ent Co$$ittees a%4ue that the Senate /oes

not ha*e to publish its Rules because the sa$e 7as publishe/ in 1HH? an/ in '!.

,u%the%& the: clai$ that the Senate is a continuin4 bo/:I thus& it is not %e<ui%e/ to

%epublish the Rules& unless the sa$e is %epeale/ o% a$en/e/.

On the natu%e of the Senate as a continuin4 bo/:& this Cou%t sees 6t to issue a

cla%i6cation. Ce%tainl:& the%e is no /ebate that the Senate as an institution is

continuin4& as it is not /issol*e/ as an entit: 7ith each national election o% chan4e

in the co$position of its $e$be%s. o7e*e%& in the con/uct of its /a:0to0/a:

business the Senate of each Con4%ess acts sepa%atel: an/ in/epen/entl: of the

Senate of the Con4%ess befo%e it. The Rules of the Senate itself con6%$s this 7hen it

states2



RU(E ()

UN,)N)SE- BUS)NESS

SEC. 1'#. Un6nishe/ business at the en/ of the session shall be ta=en up at the

ne3t session in the sa$e status.

All pen/in4 $atte%s an/ p%ocee/in4s shall te%$inate upon the e3pi%ation of one @1

Con4%ess& but $a: be ta=en b: the succee/in4 Con4%ess as if p%esent fo% the 6%st

ti$e. @e$phasis supplie/

Un/eniabl: f%o$ the fo%e4oin4& all pen/in4 $atte%s an/ p%ocee/in4s& i.e. unpasse/

bills an/ e*en le4islati*e in*esti4ations& of the Senate of a pa%ticula% Con4%ess a%e

consi/e%e/ te%$inate/ upon the e3pi%ation of that Con4%ess an/ it is $e%el: optional

on the Senate of the succee/in4 Con4%ess to ta=e up such un6nishe/ $atte%s& not in

the sa$e status& but as if p%esente/ fo% the 6%st ti$e. The lo4ic an/ p%acticalit: of

such a %ule is %ea/il: appa%ent consi/e%in4 that the Senate of the succee/in4

Con4%ess @7hich 7ill t:picall: ha*e a /iFe%ent co$position as that of the p%e*ious

Con4%ess shoul/ not be boun/ b: the acts an/ /elibe%ations of the Senate of 7hich

the: ha/ no pa%t. )f the Senate is a continuin4 bo/: e*en 7ith %espect to the

con/uct of its business& then pen/in4 $atte%s 7ill not be /ee$e/ te%$inate/ 7iththe e3pi%ation of one Con4%ess but 7ill& as a $atte% of cou%se& continue into the ne3t

Con4%ess 7ith the sa$e status.

This /ichoto$: of the continuit: of the Senate as an institution an/ of the opposite

natu%e of the con/uct of its business is %eecte/ in its Rules. The Rules of the Senate

@i.e. the Senate;s $ain %ules of p%oce/u%e states2

RU(E ()

AMEN-MENTS TO& OR RE)S)ONS O,& TE RU(ES

SEC. 1#!. At the sta%t of each session in 7hich the Senato%s electe/ in the p%ece/in4

elections shall be4in thei% te%$ of o5ce& the P%esi/ent $a: en/o%se the Rules to the

app%op%iate co$$ittee fo% a$en/$ent o% %e*ision.



The Rules $a: also be a$en/e/ b: $eans of a $otion 7hich shoul/ be p%esente/

at least one /a: befo%e its consi/e%ation& an/ the *ote of the $ao%it: of the

Senato%s p%esent in the session shall be %e<ui%e/ fo% its app%o*al. @e$phasis

supplie/

RU(E ())

-ATE O, TA)NG E,,ECT

SEC. 1#. These Rules shall ta=e eFect on the /ate of thei% a/option an/ shall

%e$ain in fo%ce until the: a%e a$en/e/ o% %epeale/. @e$phasis supplie/

Section 1#! of the Senate Rules <uote/ abo*e ta=es into account the ne7

co$position of the Senate afte% an election an/ the possibilit: of the a$en/$ent o%

%e*ision of the Rules at the sta%t of each session in 7hich the ne7l: electe/

Senato%s shall be4in thei% te%$.

o7e*e%& it is e*i/ent that the Senate has /ete%$ine/ that its $ain %ules a%e

inten/e/ to be *ali/ f%o$ the /ate of thei% a/option until the: a%e a$en/e/ o%

%epeale/. Such lan4ua4e is conspicuousl: absent f%o$ the Rules. The Rules si$pl:state @these Rules shall ta=e eFect se*en @ /a:s afte% publication in t7o @'

ne7spape%s of 4ene%al ci%culation.?H The latte% /oes not e3plicitl: p%o*i/e fo% the

continue/ eFecti*it: of such %ules until the: a%e a$en/e/ o% %epeale/. )n *ie7 of

the /iFe%ence in the lan4ua4e of the t7o sets of Senate %ules& it cannot be

p%esu$e/ that the Rules @on le4islati*e in<ui%ies 7oul/ continue into the ne3t

Con4%ess. The Senate of the ne3t Con4%ess $a: easil: a/opt /iFe%ent %ules fo% its

le4islati*e in<ui%ies 7hich co$e 7ithin the %ule on un6nishe/ business.

The lan4ua4e of Section '1& A%ticle ) of the Constitution %e<ui%in4 that the in<ui%:be con/ucte/ in acco%/ance 7ith the /ul: publishe/ %ules of p%oce/u%e is

cate4o%ical. )t is incu$bent upon the Senate to publish the %ules fo% its le4islati*e

in<ui%ies in each Con4%ess o% othe%7ise $a=e the publishe/ %ules clea%l: state that

the sa$e shall be eFecti*e in subse<uent Con4%esses o% until the: a%e a$en/e/ o%

%epeale/ to su5cientl: put public on notice.



)f it 7as the intention of the Senate fo% its p%esent %ules on le4islati*e in<ui%ies to be

eFecti*e e*en in the ne3t Con4%ess& it coul/ ha*e easil: a/opte/ the sa$e lan4ua4e

it ha/ use/ in its $ain %ules %e4a%/in4 eFecti*it:.

(est the Cou%t be $isconst%ue/& it shoul/ li=e7ise be st%esse/ that not all o%/e%s

issue/ o% p%ocee/in4s con/ucte/ pu%suant to the subect Rules a%e null an/ *oi/.

Onl: those that %esult in *iolation of the %i4hts of 7itnesses shoul/ be consi/e%e/

null an/ *oi/& consi/e%in4 that the %ationale fo% the publication is to p%otect the

%i4hts of 7itnesses as e3p%esse/ in Section '1& A%ticle ) of the Constitution. Sans

such *iolation& o%/e%s an/ p%ocee/in4s a%e consi/e%e/ *ali/ an/ eFecti*e.

Respon/ent Co$$ittees; last a%4u$ent is that thei% issuance of the conte$pt o%/e%

is not p%ecipitate o% a%bit%a%:. Ta=in4 into account the totalit: of ci%cu$stances& 7e

6n/ no $e%it in thei% a%4u$ent.

As 7e ha*e st%esse/ befo%e& petitione% is not an un7illin4 7itness& an/ cont%a%: to

the asse%tion of %espon/ent Co$$ittees& petitione% /i/ not assu$e that the: no

lon4e% ha/ an: othe% <uestions fo% hi$. e %epeate/l: $anifeste/ his 7illin4ness to

atten/ subse<uent hea%in4s an/ %espon/ to ne7 $atte%s. is onl: %e<uest 7as that

he be fu%nishe/ a cop: of the ne7 <uestions in a/*ance to enable hi$ to

a/e<uatel: p%epa%e as a %esou%ce pe%son. e /i/ not atten/ the No*e$be% '& '

hea%in4 because E3ecuti*e Sec%eta%: E%$ita %e<ueste/ %espon/ent Co$$ittees to

/ispense 7ith his testi$on: on the 4%oun/ of e3ecuti*e p%i*ile4e. Note thatpetitione% is an e3ecuti*e o5cial un/e% the /i%ect cont%ol an/ supe%*ision of the

Chief E3ecuti*e. Jh: punish petitione% fo% conte$pt 7hen he 7as $e%el: /i%ecte/

b: his supe%io% Besi/es& sa*e fo% the th%ee @# <uestions& he 7as *e%: coope%ati*e

/u%in4 the Septe$be% '!& ' hea%in4.

On the pa%t of %espon/ent Co$$ittees& this Cou%t obse%*es thei% haste an/

i$patience. )nstea/ of %ulin4 on E3ecuti*e Sec%eta%: E%$ita;s clai$ of e3ecuti*e

p%i*ile4e& the: cu%tl: /is$isse/ it as unsatisfacto%: an/ o%/e%e/ the a%%est of

petitione%. The: coul/ ha*e info%$e/ petitione% of thei% %ulin4 an/ 4i*en hi$ ti$e to/eci/e 7hethe% to acce/e o% 6le a $otion fo% %econsi/e%ation. Afte% all& he is not ust

an o%/ina%: 7itnessI he is a hi4h0 %an=in4 o5cial in a co0e<ual b%anch of

4o*e%n$ent. e is an alte% e4o of the P%esi/ent. The sa$e haste an/ i$patience

$a%=e/ the issuance of the conte$pt o%/e%& /espite the absence of the $ao%it: of

the $e$be%s of the %espon/ent Co$$ittees& an/ thei% subse<uent /is%e4a%/ of



petitione%;s $otion fo% %econsi/e%ation alle4in4 the pen/enc: of his petition fo%

ce%tio%a%i befo%e this Cou%t.

On a conclu/in4 note& 7e a%e not un$in/ful of the fact that the E3ecuti*e an/ the

(e4islatu%e a%e political b%anches of 4o*e%n$ent. )n a f%ee an/ /e$oc%atic societ:&

the inte%ests of these b%anches ine*itabl: clash& but each $ust t%eat the othe% 7ith

o5cial cou%tes: an/ %espect. This Cou%t 7holehea%te/l: concu%s 7ith the p%oposition

that it is i$pe%ati*e fo% the continue/ health of ou% /e$oc%atic institutions that 7e

p%ese%*e the constitutionall: $an/ate/ chec=s an/ balances a$on4 the /iFe%ent

b%anches of 4o*e%n$ent.

)n the p%esent case& it is %espon/ent Co$$ittees; contention that thei%

/ete%$ination on the *ali/it: of e3ecuti*e p%i*ile4e shoul/ be bin/in4 on the

E3ecuti*e an/ the Cou%ts. )t is thei% asse%tion that thei% inte%nal p%oce/u%es an//elibe%ations cannot be in<ui%e/ into b: this Cou%t suppose/l: in acco%/ance 7ith

the p%inciple of %espect bet7een co0e<ual b%anches of 4o*e%n$ent. )nte%estin4l:& it

is a cou%tes: that the: appea% to be un7illin4 to e3ten/ to the E3ecuti*e @on the

$atte% of e3ecuti*e p%i*ile4e o% this Cou%t @on the $atte% of u/icial %e*ie7. )t

$o*es this Cou%t to 7on/e%2 )n %espon/ent Co$$ittees; pa%a/i4$ of chec=s an/

balances& 7hat a%e the chec=s to the (e4islatu%e;s all0enco$passin4& a7eso$e

po7e% of in*esti4ation )t is a po7e%& li=e an: othe%& that is susceptible to 4%a*e

abuse.

Jhile this Cou%t 6n/s lau/able the %espon/ent Co$$ittees; 7ell0intentione/ eFo%ts

to fe%%et out co%%uption& e*en in the hi4hest echelons of 4o*e%n$ent& such loft:

intentions /o not *ali/ate o% acco%/ to Con4%ess po7e%s /enie/ to it b: the

Constitution an/ 4%ante/ instea/ to the othe% b%anches of 4o*e%n$ent.

The%e is no <uestion that an: sto%: of 4o*e%n$ent $alfeasance /ese%*es an in<ui%:

into its *e%acit:. As %espon/ent Co$$ittees conten/& this is foun/e/ on the

constitutional co$$an/ of t%anspa%enc: an/ public accountabilit:. The %ecent

cla$o% fo% a sea%ch fo% t%uth b: the 4ene%al public& the %eli4ious co$$unit: an/the aca/e$e is an in/ication of a conce%ne/ citi>en%:& a nation that /e$an/s an

accountin4 of an ent%uste/ po7e%. o7e*e%& the best *enue fo% this noble

un/e%ta=in4 is not in the political b%anches of 4o*e%n$ent. The custo$a%:

pa%tisanship an/ the absence of 4ene%all: accepte/ %ules on e*i/ence a%e too 4%eat

an obstacle in a%%i*in4 at the t%uth o% achie*in4 ustice that $eets the test of the

constitutional 4ua%antee of /ue p%ocess of la7. Je belie*e the people /ese%*e a



$o%e e3actin4 sea%ch fo% t%uth than the p%ocess he%e in <uestion& if that is its

obecti*e.

JERE,ORE& %espon/ent Co$$ittees; Motion fo% Reconsi/e%ation /ate/ Ap%il 8&

'8 is he%eb: -EN)E-.

SO OR-ERE-.

Puno& C..& Luisu$bin4& +na%es0Santia4o& Ca%pio& Aust%ia0Ma%tine>& Co%ona& Ca%pio0

Mo%ales& A>cuna& Tin4a& Chico0Na>a%io& elasco& %.& Nachu%a& Re:es& B%ion& .&

concu%.

-issentin4 Opinion 0 C.. Puno

Sepa%ate Opinion on the Motion fo% Reconsi/e%ation 0 . Luisu$bin4

Sepa%ate -issentin4 Opinion 0 . A>cuna

Sepa%ate Opinion 0 . Re:es

,ootnotes

1 Chai%e/ b: on. Senato% Alan Pete% S. Ca:etano.

' Chai%e/ b: on. Senato% Manuel A. Ro3as )).

# Chai%e/ b: on. Senato% Ro/olfo G. Bia>on.

" T%ansc%ipt of the Septe$be% '!& ' ea%in4 of the %espon/ent Co$$ittees& pp.

H10H'.



? )/.& pp. 11"011?.

! )/.& pp. '!0'.

See (ette% /ate/ No*e$be% 1?& '.

8 See (ette% /ate/ anua%: #& '8.

H G.R. No. H?#!& Ma: '#& 1HH?& '"" SCRA '8!.

1 "## Phil. ?! @''

11 G.R. No. 1!H& Ap%il '& '!& "88 SCRA 1.

1' Sup%a.& note H.

1# Sup%a.& note 11.

1" G.R. No. 1#1!& -ece$be% H& 1HH8& 'HH SCRA "".

1? Sup%a.& note 1.

1! Al$onte *. as<ue>& sup%a.& note H.

1 Cha*e> *. PCGG& sup%a.& note 1".



18 Senate *. E%$ita& sup%a.& note 11.

1H Telefun=en Se$icon/ucto%s E$plo:ees Union 0,,J *. Cou%t of Appeals& G.R. Nos.1"#1#01"& -ece$be% 18& '& #"8 SCRA ?!?&?8I al/e%a$a *. N(RC& G.R. No.

H8'#H& Ap%il '?&1HH!& '?! SCRA "!!& "' citin4 Polica%pio *. P..B. an/ Associate/

)ns. K Su%et: Co.& )nc.& 1! Phil. 1'?& 1#1 @1H?H.

' Sup%a& note 11 at pp. !80!H

'1 )/.& at pp. "?0"!

'' )/.& at p. ?8

'# )/.& at p. ?

'" Jebste% Enc:clope/ic Unab%i/4e/ -ictiona%:& G%a$e%c: Boo=s 1HH"& p. 1181.

'? Business -ictiona%:& http299777.business/ictiona%:.co$9/e6nition9non0/ele4able0

/ut:.ht$l

'! UsaFe ete%ans Association& )nc. *. T%easu%e% of the Philippines& et al. @1? Phil.

1#& 1#8I See also Co$$issione% of )nte%nal Re*enue *. ohn Gota$co K Sons&

)nc. G.R. No. (0#1H'& ,eb%ua%: '& 1H8&1"8 SCRA #!& #H.

' No. H!0#1'"& une 1& 1HH& 1'1 ,.#/ 'H&#'! U.S. App. -.C. '!.

'8 #!? , #/. 118& #!1 U.S. App. -.C. 18#& !" ,e/. R. E*i/. Se%*.1"1.



'H A%ticle )))& Sec. . The %i4ht of the people to info%$ation on $atte%s of public

conce%n shall be %eco4ni>e/. Access to o5cial %eco%/s& an/ to /ocu$ents& an/

pape%s pe%tainin4 to o5cial %eco%/s& an/ to /ocu$ents& an/ pape%s pe%tainin4 to

o5cial acts& t%ansactions& o% /ecisions& as 7ell as to 4o*e%n$ent %esea%ch /ata use/

as basis fo% polic: /e*elop$ent& shall be aFo%/e/ the citi>en& subect to such

li$itations as $a: be p%o*i/e/ b: la7.

# A%ticle ))& Sec. '". The State %eco4ni>es the *ital %ole of co$$unication an/

info%$ation in nation0buil/in4.

#1 A%ticle ))& Sec. '8. Subect to %easonable con/itions p%esc%ibe/ b: la7& the State

a/opts an/ i$ple$ents a polic: of full public /isclosu%e of all its t%ansactions

in*ol*in4 public inte%est.

#' A%ticle )& Sec. 1. Public o5ce is a public t%ust. Public o5ce%s an/ e$plo:ees

$ust at all ti$es be accountable to the people& se%*e the$ 7ith ut$ost

%esponsibilit:& inte4%it:& lo:alt:& an/ e5cienc:& act 7ith pat%iotis$ an/ ustice& an/

lea/ $o/est li*es.

## A%ticle )& Sec. 1. The State shall p%o*i/e the polic: en*i%on$ent fo% the full

/e*elop$ent of ,ilipino capabilit: an/ the e$e%4ence of co$$unications st%uctu%essuitable to the nee/s an/ aspi%ations of the nation an/ the balance/ o7 of

info%$ation into& out of& an/ ac%oss the count%:& in acco%/ance 7ith a polic: that

%espects the f%ee/o$ of speech an/ of the p%ess.

#" A%ticle ))& Sec. '. The P%esi/ent $a: cont%act o% 4ua%antee fo%ei4n loans on

behalf of the Republic of the Philippines 7ith the p%io% concu%%ence of the Moneta%:

Boa%/& an/ subect to such li$itations as $a: be p%o*i/e/ b: la7. The Moneta%:

Boa%/ shall& 7ithin thi%t: /a:s f%o$ the en/ of e*e%: <ua%te% of the calen/a% :ea%&

sub$it to Con4%ess a co$plete %epo%t of its /ecisions on applications fo% loans to be

cont%acte/ o% 4ua%antee/ b: the Go*e%n$ent o% 4o*e%n$ent0cont%olle/

co%po%ations 7hich 7oul/ ha*e the eFect of inc%easin4 the fo%ei4n /ebt& an/

containin4 othe% $atte%s as $a: be p%o*i/e/ b: la7.

#? A%ticle ))& Sec. H. The Con4%ess $a: establish an in/epen/ent econo$ic an/

plannin4 a4enc: hea/e/ b: the P%esi/ent& 7hich shall& afte% consultations 7ith the



app%op%iate public a4encies& *a%ious p%i*ate secto%s& an/ local 4o*e%n$ent units&

%eco$$en/ to Con4%ess& an/ i$ple$ent continuin4 inte4%ate/ an/ coo%/inate/

p%o4%a$s an/ policies fo% national /e*elop$ent. Until the Con4%ess p%o*i/es

othe%7ise& the National Econo$ic an/ -e*elop$ent Autho%it: shall function as the

in/epen/ent plannin4 a4enc: of the 4o*e%n$ent.

#! A%ticle ))& Sec. '1. ,o%ei4n loans $a: onl: be incu%%e/ in acco%/ance 7ith la7

an/ the %e4ulation of the $oneta%: autho%it:. )nfo%$ation on fo%ei4n loans obtaine/

o% 4ua%antee/ b: the Go*e%n$ent shall be $a/e a*ailable to the public.

# A%ticle ))& Sec. ''. Acts 7hich ci%cu$*ent o% ne4ate an: of the p%o*isions of this

A%ticle shall be consi/e%e/ ini$ical to the national inte%est an/ subect to c%i$inal

an/ ci*il sanctions& as $a: be p%o*i/e/ b: la7.

#8 1" ,. Supp. '#& 'HH U.S. #" @1H#!.

#H G.R. No. 1?1!& p%o$ul4ate/ ul: 1!& '8.

" Sup%a note 1".

"1 Senate Select Co$$ittee on P%esi/ential Ca$pai4n Acti*ities *. Ni3on& "H8 ,.'/

'? @-.C. Ci%. 1H".

"' TSN& O%al A%4u$ent& Ma%ch "& '8& pp. "1 0 "''.

"# Sup%a& note "1 at pp. '?& #10#'.

"" Senate Select Co$$ittee on P%esi/ential Ca$pai4n Acti*ities *. Ni3on hel/ that

Con4%ess; asse%te/ po7e% to in*esti4ate an/ info%$ 7as& stan/in4 alone&

insu5cient to o*e%co$e a clai$ of p%i*ile4e an/ so %efuse/ to enfo%ce the

con4%essional subpoena. )/.



"? G.R. No. 8HH1"& No*e$be% '& 1HH1& '# SCRA !.

"! )/.& at p. !.

" )/.& at p. 8#.

"8 The /ialo4ue bet7een petitione% an/ Senato% (acson is a 4oo/ illust%ation& thus2

SEN. (ACSON. -i/ :ou %epo%t the atte$pte/ b%ibe oFe% to the P%esi/ent

MR. NER). ) $entione/ it to the P%esi/ent& +ou% ono%.

SEN. (ACSON2 Jhat /i/ she tell :ou

MR. NER). She tol/ $e& -on;t accept it.

SEN. (ACSON. An/ then& that;s it

MR. NER). +eah& because 7e ha/ othe% thin4s to /iscuss /u%in4 that ti$e.

SEN. (ACSON. An/ then afte% the P%esi/ent tol/ :ou& -o not accept it& 7hat /i/

she /o o7 /i/ :ou %epo%t it to the P%esi/ent )n the sa$e conte3t that it 7asoFe%e/ to :ou

MR. NER). ) %e$e$be% it 7as o*e% the phone& +ou% ono%.



SEN. (ACSON. in/i n4a. Papaano nin:o ni0%epo%t& )nope%an @oFe% a=o n4 b%ibe na

P' $illion ni Chai%$an Abalos o% 7hat o7 /i/ :ou %epo%t it to he%

MR.NER). Jell& ) sai/& Chai%$an Abalos oFe%e/ $e ' $illion fo% this.;

SEN. (ACSON. O=a:. That clea%

MR. NER). );$ so%%:.

SEN. (ACSON. That clea%

MR. NER). ) thin= so& +ou% ono%.

SEN. (ACSON. An/ afte% she tol/ :ou. -o not accept it&; 7hat /i/ she /o

MR. NER). ) /on;t =no7 an:$o%e& +ou% ono%& but ) un/e%stan/ PAGC in*esti4ate/ it

o%0) 7as not p%i*: to an: action of PAGC.

SEN. (ACSON. +ou a%e not p%i*: to an: %eco$$en/ation sub$itte/ b: PAGC

MR. NER). No& +ou% ono%.

SEN. (ACSON. o7 /i/ she %eact& 7as she shoc=e/ also li=e :ou o% 7as it ust

casuall: %espon/e/ to as& -on;t accept.

MR. NER). )t 7as o*e% the phone& +ou% ono%& so ) cannot see he% facial e3p%ession.



SEN. (ACSON. -i/ it ha*e so$ethin4 to /o 7ith :ou% chan4e of hea%t so to spea= 0

:ou% attitu/e to7a%/s the NBN p%oect as p%opose/ b: DTE

MR. NER). Can :ou cla%if:& +ou% ono%& ) /on;t un/e%stan/ the chan4e of hea%t.

SEN. (ACSON. Because& on Ma%ch '! an/ e*en on No*e$be% '1& as ea%l: as

No*e$be% '1& '! /u%in4 the NE-A Boa%/ Cabinet Meetin4& :ou 7e%e in

a4%ee$ent 7ith the P%esi/ent that it shoul/ be pa: as :ou use an/ not ta=e o% pa:.

The%e shoul/ be no 4o*e%n$ent subsi/: an/ it shoul/ be BOT o% BOO o% an: si$ila%

sche$e an/ :ou 7e%e in a4%ee$ent& :ou 7e%e not a%4uin4. The P%esi/ent 7as not

a%4uin4 7ith :ou& :ou 7e%e not a%4uin4 7ith the P%esi/ent& so :ou 7e%e in

a4%ee$ent an/ all of a su//en nau7i ta:o /oon sa lahat n4 000 an/ p%oposal all in

*iolation of the P%esi/ent;s Gui/elines an/ in *iolation of 7hat :ou thou4ht of the

p%oect

MR. NER). Jell& 7e /efe% to the i$ple$entin4 a4enc:;s choice as to ho7 to

i$ple$ent the p%oect.

"H Jat=ins *. Unite/ States& #?" U.S. 18 @1H?.

? #! U.A. 1H& # ( E/. '/ 111?& !H S CT 181 @1H?H.

?1 A%ticle )& Section 1#& pa%.1 of the Constitution.

?' "8 ,. '/ .

?# P%ofesso% Ch%istophe% Sch%oe/e% @then 7ith the Clinton ustice -epa%t$ent& fo%

e3a$ple& labele/ so$e of Con4%ess;s in*esti4ations as no $o%e than *en/etta

o*e%si4ht o% o*e%si4ht that see$s p%i$a%il: inte%este/ in b%in4in4 so$eone /o7n&

usuall: so$eone close to the P%esi/ent o% pe%haps the P%esi/ent hi$self. Theo/o%e

Olson @the fo%$e% Solicito% Gene%al in the Bush ustice -epa%t$ent& in tu%n& has

a%4ue/ that o*e%si4ht has been use/ i$p%ope%l: b: Con4%ess to inuence /ecision

$a=in4 of e3ecuti*e b%anch o5cials in a 7a: that un/e%cuts the P%esi/ent;s po7e%



to assu%e that la7s a%e faithfull: e3ecute/. @Ma%shall& The (i$its on Con4%ess;

Autho%it: to )n*esti4ate the P%esi/ent& Ma%shall0)llinois.-oc& No*e$be% '"& '".

?" 1# U.S. 1!8 @188.

?? enan P%ofesso% of (a7& Uni*e%sit: of No%th Ca%olina.

?! G.R. No. 1''??& Au4ust 1"& 1HH& ' SCRA '!8.

? T%ansc%ipt of the anua%: #& '8 p%ocee/in4s pp. ?0.

?8 TSN& Ma%ch "& '8& at pp. ?'H0?#.

?H Section '"& Rules of P%oce/u%e Go*e%nin4 )n<ui%ies in Ai/ of (e4islation.

The (a7phil P%oect 0 A%ellano (a7 ,oun/ation

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