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:n the e9ceptional instances (here a (arrant is not necessary to e''ect a valid search or seizure,
(hat constitutes a reasonable or unreasonable search or seizure is purely a >udicial Duestion,
deter$inable 'ro$ the uniDueness o' the circu$stances involved, includin) the purpose o' the
search or seizure, the presence or absence o' probable cause, the $anner in (hich the search and
seizure (as $ade, the place or thin) searched, and the character o' the articles procured.
4
:n li)ht o' the enu$erated e9ceptions, and applyin) the test o' reasonableness laid do(n above, is
the (arrantless search and seizure o' the 'irear$ and a$$unition validI
We ans(er in the ne)ative.
For one, the (arrantless search could not be >usti'ied as an incident to a la('ul arrest. Searches and
seizures incident to la('ul arrests are )overned by Section 1, <ule 1!6 o' the <ules o' Court, (hich
reads*
S7C. 1. Search incident to la('ul arrest. Q ; person la('ully arrested $ay be searched 'or
dan)erous (eapons or anythin) (hich $ay have been used or constitute proo' in the co$$ission o'
an o''ense (ithout a search (arrant.
We (ould like to stress that the scope o' the (arrantless search is not (ithout li$itations. :n "eople
v. %ean)siri,
/
"eople v. Cubcubin, Jr.,
6
and "eople v. 7stella,
0
(e had the occasion to lay do(n the
para$eters o' a valid (arrantless search and seizure as an incident to a la('ul arrest.
When an arrest is $ade, it is reasonable 'or the arrestin) o''icer to search the person arrested in
order to re$ove any (eapon that the latter $i)ht use in order to resist arrest or e''ect his escape.
6ther(ise, the o''icerPs sa'ety $i)ht (ell be endan)ered, and the arrest itsel' 'rustrated. :n addition,
it is entirely reasonable 'or the arrestin) o''icer to search 'or and seize any evidence on the
arresteePs person in order to prevent its conceal$ent or destruction.
J
&oreover, in la('ul arrests, it beco$es both the duty and the ri)ht o' the apprehendin) o''icers to
conduct a (arrantless search not only on the person o' the suspect, but also in the per$issible area
(ithin the latterPs reach.
9
6ther(ise stated, a valid arrest allo(s the seizure o' evidence or
dan)erous (eapons either on the person o' the one arrested or (ithin the area o' his i$$ediate
control.
45
+he phrase E(ithin the area o' his i$$ediate controlE $eans the area 'ro$ (ithin (hich he
$i)ht )ain possession o' a (eapon or destructible evidence.
41
; )un on a table or in a dra(er in 'ront
o' one (ho is arrested can be as dan)erous to the arrestin) o''icer as one concealed in the clothin)
o' the person arrested.
4!
:n the present case, ?aleroso (as arrested by virtue o' a (arrant o' arrest alle)edly 'or kidnappin)
(ith ranso$. ;t that ti$e, ?aleroso (as sleepin) inside the boardin) house o' his children. ,e (as
a(akened by the arrestin) o''icers (ho (ere heavily ar$ed. +hey pulled hi$ out o' the roo$, placed
hi$ beside the 'aucet outside the roo$, tied his hands, and then put hi$ under the care o'
Cisuanco.
4
+he other police o''icers re$ained inside the roo$ and ransacked the locked
cabinet
44
(here they 'ound the sub>ect 'irear$ and a$$unition.
4/
With such discovery, ?aleroso (as
char)ed (ith ille)al possession o' 'irear$ and a$$unition.
Fro$ the 'ore)oin) narration o' 'acts, (e can readily conclude that the arrestin) o''icers served the
(arrant o' arrest (ithout any resistance 'ro$ ?aleroso. +hey placed hi$ i$$ediately under their
control by pullin) hi$ out o' the bed, and brin)in) hi$ out o' the roo$ (ith his hands tied. +o be
sure, the cabinet (hich, accordin) to ?aleroso, (as locked, could no lon)er be considered as an
Earea (ithin his i$$ediate controlE because there (as no (ay 'or hi$ to take any (eapon or to
destroy any evidence that could be used a)ainst hi$.
+he arrestin) o''icers (ould have been >usti'ied in searchin) the person o' ?aleroso, as (ell as the
tables or dra(ers in 'ront o' hi$, 'or any concealed (eapon that $i)ht be used a)ainst the 'or$er.
8ut under the circu$stances obtainin), there (as no co$parable >usti'ication to search throu)h all
the desk dra(ers and cabinets or the other closed or concealed areas in that roo$ itsel'.
46
:t is (orthy to note that the purpose o' the e9ception 2(arrantless search as an incident to a la('ul
arrest3 is to protect the arrestin) o''icer 'ro$ bein) har$ed by the person arrested, (ho $i)ht be
ar$ed (ith a concealed (eapon, and to prevent the latter 'ro$ destroyin) evidence (ithin reach.
+he e9ception, there'ore, should not be strained beyond (hat is needed to serve its purpose.
40
:n the
case be'ore us, search (as $ade in the locked cabinet (hich cannot be said to have been (ithin
?alerosoPs i$$ediate control. +hus, the search e9ceeded the bounds o' (hat $ay be considered as
an incident to a la('ul arrest.
4J
#or can the (arrantless search in this case be >usti'ied under the Eplain vie( doctrine.E
+he Eplain vie( doctrineE $ay not be used to launch unbridled searches and indiscri$inate seizures
or to e9tend a )eneral e9ploratory search $ade solely to 'ind evidence o' de'endantPs )uilt. +he
doctrine is usually applied (here a police o''icer is not searchin) 'or evidence a)ainst the accused,
but nonetheless inadvertently co$es across an incri$inatin) ob>ect.
49
;s enunciated in "eople v. Cubcubin, Jr.
/5
and "eople v. %ean)siri*
/1
What the Eplain vie(E cases have in co$$on is that the police o''icer in each o' the$ had a prior
>usti'ication 'or an intrusion in the course o' (hichF,G he ca$e inadvertently across a piece o'
evidence incri$inatin) the accused. +he doctrine serves to supple$ent the prior >usti'ication Q
(hether it be a (arrant 'or another ob>ect, hot pursuit, search incident to la('ul arrest, or so$e other
le)iti$ate reason 'or bein) present unconnected (ith a search directed a)ainst the accused Q and
per$its the (arrantless seizure. 6' course, the e9tension o' the ori)inal >usti'ication is le)iti$ate only
(here it is i$$ediately apparent to the police that they have evidence be'ore the$= the Eplain vie(E
doctrine $ay not be used to e9tend a )eneral e9ploratory search 'ro$ one ob>ect to another until
so$ethin) incri$inatin) at last e$er)es.
/!
:ndeed, the police o''icers (ere inside the boardin) house o' ?alerosoPs children, because they (ere
supposed to serve a (arrant o' arrest issued a)ainst ?aleroso. :n other (ords, the police o''icers had
a prior >usti'ication 'or the intrusion. ConseDuently, any evidence that they (ould inadvertently
discover $ay be used a)ainst ?aleroso. ,o(ever, in this case, the police o''icers did not >ust
accidentally discover the sub>ect 'irear$ and a$$unition= they actually searched 'or evidence
a)ainst ?aleroso.
Clearly, the search $ade (as ille)al, a violation o' ?alerosoPs ri)ht a)ainst unreasonable search and
seizure. ConseDuently, the evidence obtained in violation o' said ri)ht is inad$issible in evidence
a)ainst hi$.a%%phi
Anreasonable searches and seizures are the $enace a)ainst (hich the constitutional )uarantees
a''ord 'ull protection. While the po(er to search and seize $ay at ti$es be necessary 'or public
(el'are, still it $ay be e9ercised and the la( en'orced (ithout trans)ressin) the constitutional ri)hts
o' the citizens, 'or no en'orce$ent o' any statute is o' su''icient i$portance to >usti'y indi''erence to
the basic principles o' )overn$ent. +hose (ho are supposed to en'orce the la( are not >usti'ied in
disre)ardin) the ri)hts o' an individual in the na$e o' order. 6rder is too hi)h a price to pay 'or the
loss o' liberty.
/
8ecause a (arrantless search is in dero)ation o' a constitutional ri)ht, peace o''icers (ho conduct it
cannot invoke re)ularity in the per'or$ance o' o''icial 'unctions.
/4
+he 8ill o' <i)hts is the bedrock o' constitutional )overn$ent. :' people are stripped naked o' their
ri)hts as hu$an bein)s, de$ocracy cannot survive and )overn$ent beco$es $eanin)less. +his
e9plains (hy the 8ill o' <i)hts, contained as it is in ;rticle ::: o' the Constitution, occupies a position
o' pri$acy in the 'unda$ental la( (ay above the articles on )overn$ental po(er.
//
Without the ille)ally seized 'irear$, ?alerosoPs conviction cannot stand. +here is si$ply no su''icient
evidence to convict hi$.
/6
;ll told, the )uilt o' ?aleroso (as not proven beyond reasonable doubt
$easured by the reDuired $oral certainty 'or conviction. +he evidence presented by the prosecution
(as not enou)h to overco$e the presu$ption o' innocence as constitutionally ordained. :ndeed, it
(ould be better to set 'ree ten $en (ho $i)ht probably be )uilty o' the cri$e char)ed than to convict
one innocent $an 'or a cri$e he did not co$$it.
/0
With the 'ore)oin) disDuisition, there is no $ore need to discuss the other issues raised by ?aleroso.
6ne 'inal note. +he Court values liberty and (ill al(ays insist on the observance o' basic
constitutional ri)hts as a condition sine Dua non a)ainst the a(eso$e investi)ative and prosecutory
po(ers o' the )overn$ent.
/J
W,7<7F6<7, in vie( o' the 'ore)oin), the February !!, !55J Cecision and June 5, !55J
<esolution are <7C6#S:C7<7C and S7+ ;S:C7. Sr. :nsp. Jerry ?aleroso is hereby ;CLA:++7C o'
ille)al possession o' 'irear$ and a$$unition.
S6 6<C7<7C.
.R. No. 96177 Jnu/, 27, 1993
6EO6LE O" THE 6H$L$66$NES, plainti''-appellee,
vs.
MAR$ MUSA , HANTATALU, accused-appellant.
5he Solicitor General for plaintiff-appellee.
0ablo L. Murillo for accused-appellant.
ROMERO, J.:
+he appellant, &ari &usa, seeks, in this appeal, the reversal o' the decision, dated ;u)ust 1,
1995,
1
o' the <e)ional +rial Court 2<+C3 o' Ra$boan)a City, 8ranch S::, 'indin) hi$ )uilty o' sellin)
$ari>uana in violation o' ;rticle ::, Section 4 o' <epublic ;ct #o. 64!/, as a$ended, other(ise kno(n as
the Can)erous Cru)s ;ct o' 190!.
+he in'or$ation 'iled on Cece$ber 1/, 19J9 a)ainst the appellant reads*
+hat on or about Cece$ber 14, 19J9, in the City o' Ra$boan)a, "hilippines, and
(ithin the >urisdiction o' this ,onorable Court, the
above-na$ed accused, not bein) authorized by la(, did then and there, (il'ully,
unla('ully and 'eloniously sell to one S@+. ;&;C6 ;#:, t(o 2!3 (rappers containin)
dried $ari>uana leaves, kno(in) the sa$e to be a prohibited dru).
C6#+<;<- +6 %;W.
2
Apon his arrai)n$ent on January 11, 1995, the appellant pleaded not )uilty.
3
;t the trial, the prosecution presented three 23 (itnesses, na$ely* 213 S)t. ;$ado ;ni, Jr. o' the 9th
#arcotics Co$$and 2#;<C6&3 o' Ra$boan)a City, (ho acted as poseur-buyer in the buy-bust
operation $ade a)ainst the appellant= 2!3 +BS)t. Jesus 8elar)a, also o' the 9th #arcotics Co$$and
o' Ra$boan)a City, (ho (as the #;<C6& tea$ leader o' the buy-bust operation= and 23 ;thena
7lisa ". ;nderson, the Cocu$ent 79a$iner and Forensic Che$ist o' "C-:#" Cri$e %aboratory o'
<e)ional Co$$and 2<7C6&3 9. +he evidence o' the prosecution (as su$$arized by the trial court
as 'ollo(s*
"rosecution evidence sho(s that in the $ornin) o' Cece$ber 1, 19J9, +BS)t. Jesus
8elar)a, leader o' a #;<C6+:CS C6&&;#C 2#;<C6&3 tea$ based at Calarian,
Ra$boan)a City, instructed S)t. ;$ado ;ni to conduct surveillance and test buy on a
certain &ari &usa o' Suterville, Ra$boan)a City. :n'or$ation received 'ro$ civilian
in'or$er (as that this &ari &usa (as en)a)ed in sellin) $ari>uana in said place. So
S)t. ;$ado ;ni, another #;<C6& a)ent, proceeded to Suterville, in co$pany (ith a
#;<C6& civilian in'or$er, to the house o' &ari &usa to (hich house the civilian
in'or$er had )uided hi$. +he sa$e civilian in'or$er had also described to hi$ the
appearance o' &ari &usa. ;$ado ;ni (as able to buy one ne(spaper-(rapped dried
$ari>uana 279h. E7E3 'or "15.55. S)t. ;ni returned to the #;<C6& o''ice and turned
over the ne(spaper-(rapped $ari>uana to +BS)t. Jesus 8elar)a. S)t. 8elar)a
inspected the stu'' turned over to hi$ and 'ound it to be $ari>uana.
+he ne9t day, Cece$ber 14, 19J9, about 1*5 ".&., a buy-bust (as planned. S)t.
;$ado ;ni (as assi)ned as the poseur buyer 'or (hich purpose he (as )iven
"!5.55 2(ith S# @;9//JJ3 by 8elar)a. +he
buy-bust $oney had been taken by +BS)t. Jesus 8elar)a 'ro$ &BS)t. #oh Sali
&ihasun, Chie' o' :nvesti)ation Section, and 'or (hich 8elar)a si)ned a receipt 279h.
E%E M E%-lE 3 +he tea$ under S)t. Foncar)as (as assi)ned as back-up security. ; pre-
arran)ed si)nal (as arran)ed consistin) o' S)t. ;ni1s raisin) his ri)ht hand, a'ter he
had succeeded to buy the $ari>uana. +he t(o #;<C6& tea$s proceeded to the
tar)et site in t(o civilian vehicles. 8elar)a1s tea$ (as co$posed o' S)t. 8elar)a,
tea$ leader, S)t. ;$ado ;ni, poseur buyer, S)t. %e)o and S)t. 8ion).
;rrivin) at the tar)et site, S)t. ;ni proceeded to the house o' &ari &usa, (hile the
rest o' the #;<C6& )roup positioned the$selves at strate)ic places about 95 to
155 $eters 'ro$ &ari &usa1s house. +BS)t. 8elar)a could see (hat (ent on bet(een
;ni and suspect &ari &usa 'ro$ (here he (as. ;ni approached &ari &usa, (ho
ca$e out o' his house, and asked ;ni (hat he (anted. ;ni said he (anted so$e
$ore stu''. ;ni )ave &ari &usa the "!5.55 $arked $oney. ;'ter receivin) the
$oney, &ari &usa (ent back to his house and ca$e back and )ave ;$ado ;ni t(o
ne(spaper (rappers containin) dried $ari>uana. ;ni opened the t(o (rappers and
inspected the contents. Convinced that the contents (ere $ari>uana, ;ni (alked
back to(ards his co$panions and raised his ri)ht hand. +he t(o #;<C6& tea$s,
ridin) the t(o civilian vehicles, sped to(ards S)t. ;ni. ;ni >oined 8elar)a1s tea$ and
returned to the house.
;t the ti$e S)t. ;ni 'irst approached &ari &usa, there (ere 'our persons inside his
house* &ari &usa, another boy, and t(o (o$en, one o' (ho$ ;ni and 8elar)a later
ca$e to kno( to be &ari &usa1s (i'e. +he second ti$e, ;ni (ith the #;<C6& tea$
returned to &ari &usa1s house, the (o$an, (ho (as later kno(n as &ari &usa1s
(i'e, slipped a(ay 'ro$ the house. S)t. 8elar)a 'risked &ari &usa but could not 'ind
the "!5.55 $arked $oney (ith hi$. &ari &usa (as then asked (here the "!5.55
(as and he told the #;<C6& tea$ he has )iven the $oney to his (i'e 2(ho had
slipped a(ay3. S)t. 8elar)a also 'ound a plastic ba) containin) dried $ari>uana
inside it so$e(here in the kitchen. &ari &usa (as then placed under arrest and
brou)ht to the #;<C6& o''ice. ;t Suterville, S)t. ;ni turned over to S)t. 8elar)a the
t(o ne(spaper-(rapped $ari>uana he had earlier bou)ht 'ro$ &ari &usa 279hs. ECE
M ECE3.
:n the #;<C6& o''ice, &ari &usa 'irst )ave his na$e as ,ussin &usa. %ater on,
&ari &usa )ave his true na$e H &ari &usa. +BS)t. Jesus 8elar)a turned over the
t(o ne(spaper-(rapped $ari>uana 2bou)ht at the buy-bust3, the one ne(spaper-
(rapped $ari>uana 2bou)ht at the test-buy3 and the plastic ba) containin) $ore
$ari>uana 2(hich had been taken by S)t. %e)o inside the kitchen o' &ari &usa3 to
the "C Cri$e %aboratory, Ra$boan)a City, 'or laboratory e9a$ination. +he turnover
o' the $ari>uana speci$en to the "C Cri$e %aboratory (as by (ay o' a letter-
reDuest, dated Cece$ber 14, 19J9 279h. E8E3, (hich (as sta$ped E<7C7:?7CE by
the "C Cri$e %aboratory 279h. E8-1E3 on the sa$e day.
&rs. ;thena 7lisa ". ;nderson, the Forensic Che$ist o' the "C Cri$e %aboratory,
e9a$ined the $ari>uana speci$ens sub>ectin) the sa$e to her three tests. ;ll
sub$itted speci$ens she e9a$ined )ave positive results 'or the presence o'
$ari>uana. &rs. ;nderson reported the results o' her e9a$ination in her Che$istry
<eport C-155-J9, dated Cece$ber 14, 19J9, 279h. EJE, EJ-1E, EJ-!E, EJ-E, EJ-4E and
EJ-/E3. &rs. ;nderson identi'ied in court the t(o ne(spaper (rapped $ari>uana
bou)ht at the
buy-bust on Cece$ber 14, 19J9, throu)h her initial and the (ei)ht o' each speci$en
(ritten (ith red ink on each (rapper 279hs. EC-1E and EC-1E3. She also identi'ied the
one ne(spaper-(rapped $ari>uana bou)ht at the test-buy on Cece$ber 1, 19J9,
throu)h her $arkin)s 279h. E7-1E3. &rs. ;nderson also identi'ied her Che$istry
<eport 279h. EJE M sub-$arkin)s.3
+. S)t. 8elar)a identi'ied the t(o buy-bust ne(spaper (rapped $ari>uana throu)h his
initial, the (ords Ebuy-bustE and the (ords ECece$ber 14, 19J9, !*4/ ".&.E 2(ritten
on 79hs. ECE and ECE3. 8elar)a also identi'ied the receipt o' the "!5 $arked $oney
2(ith S# @;9//JJ3 279h. E%E3, dated Cece$ber 14, 19J9, and his si)nature thereon
279h.
E%-1E3. ,e also identi'ied the letter-reDuest, dated Cece$ber 14, 19J9, addressed to
the "C Cri$e %aboratory 279h. E8E3 and his si)nature thereon 279h. E8-!E3 and the
sta$p o' the "C Cri$e %aboratory $arked E<7C7:?7CE 279h. E8-1E3.
5
For the de'ense, the 'ollo(in) testi'ied as (itnesses* 213 the accused-appellant &ari ,. &usa= and
2!3 ;hara <. &usa, his (i'e. +he trial court su$$arized the version o' the de'ense, thus*
F6Gn Cece$ber 14, 19J9, at about 1*5 in the a'ternoon, &ari &usa (as in his house
at Suterville, Ra$boan)a City. With hi$ (ere his (i'e, ;hara &usa, kno(n as ;ra,
his one-year old child, a (o$an $anicurist, and a $ale cousin na$ed ;bdul &usa.
;bout 1*5 that a'ternoon, (hile he (as bein) $anicured at one hand, his (i'e (as
inside the one roo$ o' their house, puttin) their child to sleep. +hree #;<C6&
a)ents, (ho introduced the$selves as #;<C6& a)ents, dressed in civilian clothes,
)ot inside &ari &usa1s house (hose door (as open. +he #;<C6& a)ents did not
ask per$ission to enter the house but si$ply announced that they (ere #;<C6&
a)ents. +he #;<C6& a)ents searched &ari &usa1s house and &ari &usa asked
the$ i' they had a search (arrant. +he #;<C6& a)ents (ere >ust silent. +he
#;<C6& a)ents 'ound a red plastic ba) (hose contents, &ari &usa said, he did not
kno(. ,e also did not kno( i' the plastic ba) belon)ed to his brother, Faisal, (ho
(as livin) (ith hi$, or his 'ather, (ho (as livin) in another house about ten ar$s-
len)th a(ay. &ari &usa, then, (as handcu''ed and (hen &ari &usa asked (hy, the
#;<C6& a)ents told hi$ 'or clari'ication.
&ari &usa (as brou)ht in a pick-up, his (i'e >oinin) hi$ to the #;<C6& 6''ice at
Calarian, Ra$boan)a City. :nside the #;<C6& 6''ice, &ari &usa (as investi)ated
by one #;<C6& a)ent (hich investi)ation (as reduced into (ritin). +he (ritin) or
docu$ent (as interpreted to &ari &usa in +a)alo). +he docu$ent stated that the
$ari>uana belon)ed to &ari &usa and &ari &usa (as asked to si)n it. 8ut &ari
&usa re'used to si)n because the $ari>uana did not belon) to hi$. &ari &usa said
he (as not told that he (as entitled to the assistance o' counsel, althou)h he hi$sel'
told the #;<C6& a)ents he (anted to be assisted by counsel.
&ari &usa said 'our bullets (ere then placed bet(een the 'in)ers o' his ri)ht hand
and his 'in)ers (ere pressed (hich 'elt very pain'ul. +he #;<C6& a)ents bo9ed
hi$ and &ari &usa lost consciousness. While &ari &usa (as $altreated, he said his
(i'e (as outside the #;<C6& buildin). +he very day he (as arrested 2on cross-
e9a$ination &ari &usa said it (as on the ne9t day3, &ari &usa (as brou)ht to the
Fiscal1s 6''ice by three #;<C6& a)ents. +he 'iscal asked hi$ i' the $ari>uana (as
o(ned by hi$ and he said Enot.E ;'ter that sin)le Duestion, &ari &usa (as brou)ht to
the City Jail. &ari &usa said he did not tell the 'iscal that he had been $altreated by
the #;<C6& a)ents because he (as a'raid he $i)ht be $altreated in the 'iscal1s
o''ice.
&ari &usa denied the #;<C6& a)ents1 char)e that he had sold t(o (rappers o'
$ari>uana to the$= that he had received 'ro$ the$ a "!5.55 bill (hich he had )iven
to his (i'e. ,e did not sell $ari>uana because he (as a'raid that (as a)ainst the la(
and that the person sellin) $ari>uana (as cau)ht by the authorities= and he had a
(i'e and a very s$all child to support. &ari &usa said he had not been arrested 'or
sellin) $ari>uana be'ore.
9
;'ter trial, the trial court rendered the assailed decision (ith the 'ollo(in) disposition*
W,7<7F6<7, 'indin) accused &ari &usa y ,antatalu )uilty beyond reasonable
doubt o' sellin) $ari>uana and pursuant to Sec. 4, ;rt :: o' <ep. ;ct #o. 64!/, he is
sentenced to li'e i$prison$ent and to pay the 'ine o' "!5,555.55, the latter i$posed
(ithout subsidiary i$prison$ent.
6
:n this appeal, the appellant contends that his )uilt (as not proved beyond reasonable doubt and
i$pu)ns the credibility o' the prosecution (itnesses.
+he appellant clai$s that the testi$ony o' S)t. ;ni, the poseur-buyer, is not credible because* 213
prior to the buy-bust operation, neither S)t. ;ni nor the other #;<C6& a)ents (ere personally
kno(n by the appellant or vice-versa= and 2!3 there (as no (itness to the alle)ed )ivin) o' the t(o
(rappers o' $ari>uana by the appellant to S)t. ;ni.
S)t. ;ni testi'ied that on Cece$ber 1, 19J9, upon instruction by +BS)t. Jesus 8elar)a, he
conducted a test-buy operation on the appellant (hereby he bou)ht one (rapper o' $ari>uana 'or
"1/.55 'ro$ the latter.
7
,e reported the success'ul operation to +BS)t. 8elar)a on the sa$e
day.
2
Whereupon, +BS)t. 8elar)a conducted a con'erence to or)anize a buy-bust operation 'or the
'ollo(in) day.
9
6n Cece$ber 14, 19J9, at 1*5 p.$., t(o #;<C6& tea$s in separate vehicles headed by +BS)t.
8elar)a and a certain S)t. Foncardas (ent to the place o' operation, (hich (as the appellant1s
house located in %aDuian Co$pound, Suterville, Ra$boan)a City. S)t. ;ni (as (ith the tea$ o'
+BS)t. 8elar)a, (hose other $e$bers (ere S)ts. %e)o and 8ion).
10
S)t. ;ni (as )iven a $arked
"!5.55 bill by +BS)t. 8elar)a, (hich (as to be used in the operation.
Apon reachin) the place, the #;<C6& a)ents positioned the$selves at strate)ic places.
11
S)t. ;ni
approached the house. 6utside the house, the appellant asked S)t. ;ni (hat he (anted. S)t. ;ni asked
hi$ 'or so$e $ore $ari>uana.
12
S)t. ;ni )ave hi$ the $arked "!5.55 bill and the appellant (ent inside
the house and brou)ht back t(o paper (rappers containin) $ari>uana (hich he handed to S)t.
;ni.
13
Fro$ his position, S)t. ;ni could see that there (ere other people in the house.
15
;'ter the e9chan)e, S)t. ;ni approached the other #;<C6& a)ents and $ade the pre-arran)ed
si)nal o' raisin) his ri)ht hand.
19
+he #;<C6& a)ents, acco$panied by S)t. ;ni, (ent inside the house
and $ade the arrest. +he a)ents searched the appellant and unable to 'ind the $arked $oney, they
asked hi$ (here it (as. +he appellant said that he )ave it to his (i'e.
16
+he Court, a'ter a care'ul readin) o' the record, 'inds the testi$ony o' S)t. ;ni re)ardin) the buy-
bust operation, (hich resulted in the apprehension, prosecution and subseDuent conviction o' the
appellant, to be direct, lucid and 'orthri)ht. 8ein) totally untainted by contradictions in any o' the
$aterial points, it deserves credence.
+he contention that the appellant could not have transacted (ith S)t. ;ni because they do not kno(
each other is (ithout $erit. +he day be'ore the
buy-bust operation, S)t. ;ni conducted a test-buy and he success'ully bou)ht a (rapper o'
$ari>uana 'ro$ the appellant. +hrou)h this previous transaction, S)t. ;ni (as able to )ain the
appellant1s con'idence 'or the latter to sell $ore $ari>uana to S)t. ;ni the 'ollo(in) day, durin) the
buy-bust operation. &oreover, the Court has held that (hat $atters is not an e9istin) 'a$iliarity
bet(een the buyer and the seller, 'or Duite o'ten, the parties to the transaction $ay be stran)ers, but
their a)ree$ent and the acts constitutin) the sale and delivery o' the $ari>uana.
17
+he appellant, a)ain to cast doubt on the credibility o' S)t. ;ni, ar)ues that it (as i$possible 'or the
appellant to sell $ari>uana (hile his (i'e, cousin and $anicurist (ere present. 8ut the place o' the
co$$ission o' the cri$e o' sellin) prohibited dru)s has been held to be not crucial
12
and the
presence o' other people apart 'ro$ the buyer and seller (ill not necessarily prevent the consu$$ation o'
the ille)al sale. ;s the Court observed in 0eople %. 0aco,
19
these 'actors $ay so$eti$es ca$ou'la)e the
co$$ission o' the cri$e. :n the instant case, the 'act that the other people inside the appellant1s house
are kno(n to the appellant $ay have )iven hi$ so$e assurance that these people (ill not report hi$ to
the authorities.
+he appellant, besides assailin) S)t. ;ni1s credibility, also Duestions the credibility o' +BS)t. 8elar)a.
+he appellant sub$its that since +BS)t. 8elar)a ad$itted that he (as about 95 $eters a(ay 'ro$
S)t. ;ni and the appellant, he could not have possibly (itnessed the sale. +he appellant
invokes 0eople %.
Ale
20
(here the Court observed that 'ro$ a distance o' 15-1/ $eters, a police$an cannot distin)uish
bet(een $ari>uana ci)arette 'ro$ ordinary ones by the type o' rollin) done on the ci)arette sticks. ;nd
since +BS)t. 8elar)a alle)edly did not see the sale, the appellant contends that the uncorroborated
testi$ony o' S)t. ;ni can not stand as basis 'or his conviction.
0eople %. Ale does not apply here because the police$an in that case testi'ied that he and his
co$panion (ere certain that the appellant therein handed $ari>uana ci)arettes to the poseur-buyer
based on the appearance o' the ci)arette sticks. +he Court re>ected this clai$, statin) that*
+his Court cannot )ive 'ull credit to the testi$onies o' the prosecution (itnesses
$arked as they are (ith contradictions and tainted (ith inaccuracies.
8iTan testi'ied that they (ere able to tell that the 'our ci)arettes (ere $ari>uana
ci)arettes because accordin) to hi$, the rollin) o' ordinary ci)arettes are di''erent
'ro$ those o' $ari>uana ci)arettes. 2tsn, #ove$ber 1, 19J4, p. 153.
:t is ho(ever, incredible to believe that they could discern the type o' rollin) done on
those ci)arettes 'ro$ the distance (here they (ere observin) the alle)ed sale o'
$ore or less 15 to 1/ $eters.
21
:n the case at bar, ho(ever, +BS)t. 8elar)a did not positively clai$ that he sa( the appellant hand
over $ari>uana to S)t. ;ni. What he said (as that there (as an e9chan)e o' certain articles bet(een
the t(o. +he relevant portion o' +BS)t. 8elar)a1s testi$ony reads*
22
L #o(, do you re$e$ber (hether S)t. ;ni (as able to reach the
house o' &ari &usaI
; -es, $a1a$.
L ;'ter reachin) &ari &usa, did you see (hat happened 2sic3I
; -es, $a1a$.
L Could you please tell usI
; Fro$ our vehicle the stainless o(ner type >eep (here S)t. %e)o,
S)t. 8ion) (ere boarded, : sa( that S)t. ;ni proceeded to the house
near the road and he (as $et by one person and later kno(n as &ari
&usa (ho (as at the ti$e (earin) short pants and later on : sa( that
S)t. ;ni handed so$ethin) to hi$, therea'ter received by &ari &usa
and (ent inside the house and ca$e back later and handed
so$ethin) to S)t. ;ni.
Contrary to the contention o' the appellant, it (as not i$possible 'or +BS)t. 8elar)a to have seen,
'ro$ a distance o' 95-155 $eters, S)t. ;ni hand to the appellant Eso$ethin)E and 'or the latter to
)ive to the 'or$er Eso$ethin).E
#ot(ithstandin) the 'act that +BS)t. 8elar)a could not have been certain that (hat S)t. ;ni received
'ro$ the appellant (as $ari>uana because o' the distance, his testi$ony, nevertheless, corroborated
the direct evidence, (hich the Court earlier ruled to be convincin), presented by S)t. ;ni on the
'ollo(in) $aterial points* 213 +BS)t. 8elar)a instructed S)t. ;ni to conduct a surveillance and test-buy
operation on the appellant at Suterville, Ra$boan)a City on Cece$ber 1, 19J9=
23
2!3 later that sa$e
day, S)t. ;ni (ent back to their o''ice and reported a success'ul operation and turned over to +BS)t.
8elar)a one (rapper o' $ari>uana=
25
23 +BS)t. 8elar)a then or)anized a tea$ to conduct a buy-bust
operation the 'ollo(in) day=
29
243 on Cece$ber 14, 19J9, +BS)t. 8elar)a led a tea$ o' #;<C6& a)ents
(ho (ent to Suterville, Ra$boan)a City=
26
2/3 +BS)t. 8elar)a )ave a "!5.55 $arked bill to S)t. ;ni (hich
(as to be used in the buy-bust operation=
27
263 upon the arrival o' the #;<C6& a)ents in Suterville,
Ra$boan)a City, S)t. ;ni proceeded to the house o' the appellant (hile so$e a)ents stayed in the
vehicles and others positioned the$selves in strate)ic places=
22
the appellant $et S)t. ;ni and an
e9chan)e o' articles took place.
29
+he corroborative testi$ony o' +BS)t. 8elar)a stren)thens the direct evidence )iven by S)t. ;ni.
;dditionally, the Court has ruled that the 'act that the police o''icers (ho acco$panied the poseur-
buyer (ere unable to see e9actly (hat the appellant )ave the poseur-buyer because o' their
distance or position (ill not be 'atal to the prosecution1s case
30
provided there e9ists other evidence,
direct or circu$stantial, e.)., the testi$ony o' the poseur-buyer, (hich is su''icient to prove the
consu$$ation o' the sale o' the prohibited dru)
+he appellant ne9t assails the seizure and ad$ission as evidence o' a plastic ba) containin)
$ari>uana (hich the #;<C6& a)ents 'ound in the appellant1s kitchen. :t appears that a'ter S)t. ;ni
)ave the pre-arran)ed si)nal to the other #;<C6& a)ents, the latter $oved in and arrested the
appellant inside the house. +hey searched hi$ to retrieve the $arked $oney but didn1t 'ind it. Apon
bein) Duestioned, the appellant said that he )ave the $arked $oney to his (i'e.
31
+herea'ter, +BS)t.
8elar)a and S)t. %e)o (ent to the kitchen and noticed (hat +BS)t. 8elar)a described as a Ecellophane
colored (hite and stripe han)in) at the corner o' the kitchen.E
32
+hey asked the appellant about its
contents but 'ailin) to )et a response, they opened it and 'ound dried $ari>uana leaves. ;t the trial, the
appellant Duestioned the ad$issibility o' the plastic ba) and the $ari>uana it contains but the trial court
issued an 6rder rulin) that these are ad$issible in evidence.
33
8uilt into the Constitution are )uarantees on the 'reedo$ o' every individual a)ainst unreasonable
searches and seizures by providin) in ;rticle :::, Section !, the 'ollo(in)*
+he ri)ht o' the people to be secure in their persons, houses, papers, and e''ects
a)ainst unreasonable searches and seizures o' (hatever nature and 'or any purpose
shall be inviolable, and no search (arrant or (arrant o' arrest shall issue e9cept
upon probable cause to be deter$ined personally by the >ud)e a'ter e9a$ination
under oath or a''ir$ation o' the co$plainant and the (itness he $ay produce, and
particularly describin) the place to be searched and the persons or thin)s to be
seized.
Further$ore, the Constitution, in con'or$ity (ith the doctrine laid do(n in Stonehill %.
4io(no,
35
declares inad$issible, any evidence obtained in violation o' the 'reedo$ 'ro$ unreasonable
searches and seizures.
39
While a valid search (arrant is )enerally necessary be'ore a search and seizure $ay be e''ected,
e9ceptions to this rule are reco)nized. +hus, in Al%ero %. 4izon,
36
the Court stated that. EFtGhe $ost
i$portant e9ception to the necessity 'or a search (arrant is the ri)ht o' search and seizure as an incident
to a la('ul arrest.E
37
<ule 1!6, Section 1! o' the <ules o' Court e9pressly authorizes a (arrantless search and seizure
incident to a la('ul arrest, thus*
Sec. 1!. Search incident to lawful arrest. H ; person la('ully arrested $ay be
searched 'or dan)erous (eapons or anythin) (hich $ay be used as proo' o' the
co$$ission o' an o''ense, (ithout a search (arrant.
+here is no doubt that the (arrantless search incidental to a la('ul arrest authorizes the arrestin)
o''icer to $ake a search upon the person o' the person arrested. ;s early as 1959, the Court has
ruled that EFaGn o''icer $akin) an arrest $ay take 'ro$ the person arrested any $oney or property
'ound upon his person (hich (as used in the co$$ission o' the cri$e or (as the 'ruit o' the cri$e or
(hich $i)ht 'urnish the prisoner (ith the $eans o' co$$ittin)
violence or o' escapin), or (hich $ay be used as evidence in the trial o' the cause . . . E
32
,ence, in a
buy-bust operation conducted to entrap a dru)-pusher, the la( en'orce$ent a)ents $ay seize the $arked
$oney 'ound on the person
o' the pusher i$$ediately a'ter the arrest even (ithout arrest and search (arrants.
39
:n the case at bar, the #;<C6& a)ents searched the person o' the appellant a'ter arrestin) hi$ in
his house but 'ound nothin). +hey then searched the entire house and, in the kitchen, 'ound and
seized a plastic ba) han)in) in a corner.
+he (arrantless search and seizure, as an incident to a suspect1s la('ul arrest, $ay e9tend beyond
the person o' the one arrested to include the pre$ises or surroundin)s under his i$$ediate
control.
50
6b>ects in the Eplain vie(E o' an o''icer (ho has the ri)ht to be in the position to have that vie(
are sub>ect to seizure and $ay be presented as evidence.
51
:n Her %. ,alifornia
52
police o''icers, (ithout securin) a search (arrant but havin) in'or$ation that the
de'endant husband (as sellin) $ari>uana 'ro$ his apart$ent, obtained 'ro$ the buildin) $ana)er a
passkey to de'endants1 apart$ent, and entered it. +here they 'ound the de'endant husband in the livin)
roo$. +he de'endant (i'e e$er)ed 'ro$ the kitchen, and one o' the o''icers, a'ter identi'yin) hi$sel',
observed throu)h the open door(ay o' the kitchen, a s$all scale atop the kitchen sink, upon (hich lay a
brick-shaped packa)e containin) )reen lea'y substance (hich he reco)nized as $ari>uana. +he packa)e
o' $ari>uana (as used as evidence in prosecutin) de'endants 'or violation o' the #arcotic %a(. +he
ad$issibility o' the packa)e (as challen)ed be'ore the A.S. Supre$e Court, (hich held, a'ter observin)
that it (as not unreasonable 'or the o''icer to (alk to the door(ay o' the ad>acent kitchen on seein) the
de'endant (i'e e$er)e there'ro$, that Ethe discovery o' the brick o' $ari>uana did not constitute a search,
since the o''icer $erely sa( (hat (as placed be'ore hi$ in 'ull vie(.
53
+he A.S. Supre$e Court ruled that
the (arrantless seizure o' the $ari>uana (as le)al on the basis o' the Eplain vie(E doctrine and upheld the
ad$issibility o' the seized dru)s as part o' the prosecution1s evidence.
55
+he Eplain vie(E doctrine $ay not, ho(ever, be used to launch unbridled searches and
indiscri$inate seizures nor to e9tend a )eneral e9ploratory search $ade solely to 'ind evidence o'
de'endant1s )uilt. +he Eplain vie(E doctrine is usually applied (here a police o''icer is not searchin)
'or evidence a)ainst the accused, but nonetheless inadvertently co$es across an incri$inatin)
ob>ect.
59
Further$ore, the A.S. Supre$e Court stated the 'ollo(in) li$itations on the application o' the
doctrine*
What the Eplain vie(E cases have in co$$on is that the police o''icer in each o' the$ had a prior
>usti'ication 'or an intrusion in the course o' (hich he ca$e inadvertently across a piece o' evidence
incri$inatin) the accused. +he doctrine serves to supple$ent the prior >usti'ication H (hether it be a
(arrant 'or another ob>ect, hot pursuit, search incident to la('ul arrest, or so$e other le)iti$ate
reason 'or bein) present unconnected (ith a search directed a)ainst the accused H and per$its the
(arrantless seizure. 6' course, the e9tension o' the ori)inal >usti'ication is le)iti$ate only (here it is
i$$ediately apparent to the police that they have evidence be'ore the$= the Eplain vie(E doctrine
$ay not be used to e9tend a )eneral e9ploratory search 'ro$ one ob>ect to another until so$ethin)
incri$inatin) at last e$er)es.
56
:t has also been su))ested that even i' an ob>ect is observed in Eplain vie(,E the Eplain vie(E doctrine
(ill not >usti'y the seizure o' the ob>ect (here the incri$inatin) nature o' the ob>ect is not apparent
'ro$ the Eplain vie(E o' the ob>ect.
57
Stated di''erently, it $ust be i$$ediately apparent to the police that
the ite$s that they observe $ay be evidence o' a cri$e, contraband, or other(ise sub>ect to seizure.
:n the instant case, the appellant (as arrested and his person searched in the livin) roo$. Failin) to
retrieve the $arked $oney (hich they hoped to 'ind, the #;<C6& a)ents searched the (hole
house and 'ound the plastic ba) in the kitchen. +he plastic ba) (as, there'ore, not (ithin their Eplain
vie(E (hen they arrested the appellant as to >usti'y its seizure. +he #;<C6& a)ents had to $ove
'ro$ one portion o' the house to another be'ore they si)hted the plastic ba). Anlike Her %s.
,alifornia, (here the police o''icer had reason to (alk to the door(ay o' the ad>acent kitchen and
'ro$ (hich position he sa( the $ari>uana, the #;<C6& a)ents in this case (ent 'ro$ roo$ to roo$
(ith the obvious intention o' 'ishin) 'or $ore evidence.
&oreover, (hen the #;<C6& a)ents sa( the plastic ba) han)in) in one corner o' the kitchen, they
had no clue as to its contents. +hey had to ask the appellant (hat the ba) contained. When the
appellant re'used to respond, they opened it and 'ound the $ari>uana. Anlike Her %. ,alifornia, (here
the $ari>uana (as visible to the police o''icer1s eyes, the #;<C6& a)ents in this case could not
have discovered the inculpatory nature o' the contents o' the ba) had they not 'orcibly opened it.
7ven assu$in) then, that the #;<C6& a)ents inadvertently ca$e across the plastic ba) because it
(as (ithin their Eplain vie(,E (hat $ay be said to be the ob>ect in their Eplain vie(E (as >ust the
plastic ba) and not the $ari>uana. +he incri$inatin) nature o' the contents o' the plastic ba) (as not
i$$ediately apparent 'ro$ the Eplain vie(E o' said ob>ect. :t cannot be clai$ed that the plastic ba)
clearly betrayed its contents, (hether by its distinctive con'i)uration, its transprarency, or other(ise,
that its contents are obvious to an observer.
52
We, there'ore, hold that under the circu$stances o' the case, the Eplain vie(E doctrine does not
apply and the $ari>uana contained in the plastic ba) (as seized ille)ally and cannot be presented in
evidence pursuant to ;rticle :::, Section 2!3 o' the Constitution.
+he e9clusion o' this particular evidence does not, ho(ever, di$inish, in any (ay, the da$a)in)
e''ect o' the other pieces o' evidence presented by the prosecution to prove that the appellant sold
$ari>uana, in violation o' ;rticle ::, Section 4 o' the Can)erous Cru)s ;ct o' 190!. We hold that by
virtue o' the testi$onies o' S)t. ;ni and +BS)t. 8elar)a and the t(o (rappin)s o' $ari>uana sold by
the appellant to S)t. ;ni, a$on) other pieces o' evidence, the )uilt o' the appellant o' the cri$e
char)ed has been proved beyond reasonable doubt.
W,7<7F6<7, the appeal is C:S&:SS7C and the >ud)$ent o' the <e)ional +rial Court ;FF:<&7C.
S6 6<C7<7C.
Gutierrez- .r.- /idin- 4a%ide- .r. and Melo- ...- concur.
G.R. No. 29139 Au-u(+ 2, 1990
ROMEO 6OSA3AS , 1AMORA, petitioner,
vs.
THE HONORABLE COURT O" A66EALS n! THE 6EO6LE O" THE
6H$L$66$NES, respondents.
+ud' G. Agra%ate for petitioner.
GANCA#CO, J.:
+he validity o' a (arrantless search on the person o' petitioner is put into issue in this case.
6n 6ctober 16, 19J6 at about 15*55 o1clock in the $ornin) "at. Arsicio An)ab and "at. A$bra
A$par, both $e$bers o' the :nte)rated #ational "olice 2:#"3 o' the Cavao &etrodisco$ assi)ned
(ith the :ntelli)ence +ask Force, (ere conductin) a surveillance alon) &a)allanes Street, Cavao
City. While they (ere (ithin the pre$ises o' the <izal &e$orial Colle)es they spotted petitioner
carryin) a EburiE ba) and they noticed hi$ to be actin) suspiciously.
+hey approached the petitioner and identi'ied the$selves as $e$bers o' the :#". "etitioner
atte$pted to 'lee but his atte$pt to )et a(ay (as th(arted by the t(o not(ithstandin) his
resistance.
+hey then checked the EburiE ba) o' the petitioner (here they 'ound one 213 caliber .J S$ith M
Wesson revolver (ith Serial #o. 005196
1
t(o 2!3 rounds o' live a$$unition 'or a .J caliber )un
2
a
s$oke 2tear )as3 )renade,
3
and t(o 2!3 live a$$unitions 'or a .!! caliber )un.
5
+hey brou)ht the
petitioner to the police station 'or 'urther investi)ation. :n the course o' the sa$e, the petitioner (as asked
to sho( the necessary license or authority to possess 'irear$s and a$$unitions 'ound in his possession
but he 'ailed to do so. ,e (as then taken to the Cavao &etrodisco$ o''ice and the prohibited articles
recovered 'ro$ hi$ (ere indorsed to &BS)t. Cidoy the o''icer then on duty. ,e (as prosecuted 'or ille)al
possession o' 'irear$s and a$$unitions in the <e)ional +rial Court o' Cavao City (herein a'ter a plea o'
not )uilty and trial on the $erits a decision (as rendered on 6ctober J, 19J0 'indin) petitioner )uilty o'
the o''ense char)ed as 'ollo(s*
W,7<7F6<7, in vie( o' all the 'ore)oin), this Court , 'inds the accused )uilty
beyond reasonable doubt o' the o''ense char)ed.
:t appearin) that the accuse d (as belo( ei)hteen 21J3 years old at the ti$e o' the
co$$ission o' the o''ense 2;rt. 6J, par. !3, he is hereby sentenced to an
indeter$inate penalty ran)in) 'ro$ +7# 2153 -7;<S and 6#7 213 C;- o' prision
ma'or to +W7%?7 21!3 -ears, F:?7 2/3 $onths and 7leven 2113 days o' +eclusion
5emporal, and to pay the costs.
+he 'irear$, a$$unitions and s$oke )renade are 'or'eited in 'avor o' the
)overn$ent and the 8ranch Clerk o' Court is hereby directed to turn over said ite$s
to the Chie', Cavao &etrodisco$, Cavao City.
9
#ot satis'ied there(ith the petitioner interposed an appeal to the Court o' ;ppeals (herein in due
course a decision (as rendered on February !, 19J9 a''ir$in) in toto the appealed decision (ith
costs a)ainst the petitioner.
6
,ence, the herein petition 'or revie(, the $ain thrust o' (hich is that there bein) no la('ul arrest or
search and seizure, the ite$s (hich (ere con'iscated 'ro$ the possession o' the petitioner are
inad$issible in evidence a)ainst hi$.
+he Solicitor @eneral, in >usti'yin) the (arrantless search o' the buri ba) then carried by the
petitioner, ar)ues that under Section 1!, <ule 16 o' the <ules o' Court a person la('ully arrested
$ay be searched 'or dan)erous (eapons or anythin) used as proo' o' a co$$ission o' an o''ense
(ithout a search (arrant. :t is 'urther alle)ed that the arrest (ithout a (arrant o' the petitioner (as
la('ul under the circu$stances.
Section /, <ule 11 o' the 19J/ <ules on Cri$inal "rocedure provides as 'ollo(s*
S7C. /. Arrest without warrantJ when lawful K ; peace o''icer or a private person
$ay, (ithout a (arrant, arrest a person*
2a3 When in his presence, the person to be arrested has co$$itted is actually
co$$ittin), or is atte$ptin) to co$$it an o''ense=
2b3 When an o''ense has in 'act >ust been co$$itted, and he has personal
kno(led)e o' 'acts indicatin) that the person to be arrested has co$$itted it= and
2c3 When the person to be arrested is a prisoner (ho has escaped 'ro$ a penal
establish$ent or place (here he is servin) 'inal >ud)$ent or te$porarily con'ined
(hile his case is pendin), or has escaped (hile bein) trans'erred 'ro$ one
con'ine$ent to another.
:n cases 'allin) under para)raphs 2a3 and 2b3 hereo', the person arrested (ithout a
(arrant shall be 'orth(ith delivered to the nearest police station or >ail, and he shall
be proceeded a)ainst in accordance (ith <ule 11!, Section 0. 26a, 10a3
Fro$ the 'ore)oin) provision o' la( it is clear that an arrest (ithout a (arrant $ay be e''ected by a
peace o''icer or private person, a$on) others, (hen in his presence the person to be arrested has
co$$itted, is actually co$$ittin), or is atte$ptin) to co$$it an o''ense= or (hen an o''ense has in
'act >ust been co$$itted, and he has personal kno(led)e o' the 'acts indicatin) that the person
arrested has co$$itted it.
+he Solicitor @eneral ar)ues that (hen the t(o police$en approached the petitioner, he (as
actually co$$ittin) or had >ust co$$itted the o''ense o' ille)al possession o' 'irear$s and
a$$unitions in the presence o' the police o''icers and conseDuently the search and seizure o' the
contraband (as incidental to the la('ul arrest in accordance (ith Section 1!, <ule 1!6 o' the 19J/
<ules on Cri$inal "rocedure. We disa)ree.
;t the ti$e the peace o''icers in this case identi'ied the$selves and apprehended the petitioner as
he atte$pted to 'lee they did not kno( that he had co$$itted, or (as actually co$$ittin) the
o''ense o' ille)al possession o' 'irear$s and a$$unitions. +hey >ust suspected that he (as hidin)
so$ethin) in the buri ba). +hey did no( kno( (hat its contents (ere. +he said circu$stances did
not >usti'y an arrest (ithout a (arrant.
,o(ever, there are $any instances (here a (arrant and seizure can be e''ected (ithout necessarily
bein) preceded by an arrest, 'ore$ost o' (hich is the Estop and searchE (ithout a search (arrant at
$ilitary or police checkpoints, the constitutionality or validity o' (hich has been upheld by this Court
in 6almonte %s. de 6illa,
7
as 'ollo(s*
"etitioner ?al$onte1s )eneral alle)ation to the e''ect that he had been stopped and
searched (ithout a search (arrant by the $ilitary $annin) the checkpoints, (ithout
$ore, i.e., (ithout statin) the details o' the incidents (hich a$ount to a violation o'
his li)ht a)ainst unla('ul search and seizure, is not su''icient to enable the Court to
deter$ine (hether there (as a violation o' ?al$onte1s ri)ht a)ainst unla('ul search
and seizure. 9ot all searches and seizures are prohibited. 5hose which are
reasonable are not forbidden. A reasonable search is not to be determined b' an'
fi:ed formula but is to be resol%ed according to the facts of each case.
Where, 'or e9a$ple, the o''icer $erely dra(s aside the curtain o' a vacant vehicle
(hich is parked on the public 'air )rounds, or si$ply looks into a vehicle or 'lashes a
li)ht therein, these do not constitute unreasonable search.
+he settin) up o' the Duestioned checkpoints in ?alenzuela 2and probably in other
areas3 $ay be considered as a security $easure to enable the #C<CC to pursue its
$ission o' establishin) e''ective territorial de'ense and $aintainin) peace and order
'or the bene'it o' the public. Checkpoints $ay also be re)arded as $easures to
th(art plots to destabilize the )overn$ent in the interest o' public security. :n this
connection, the Court $ay take >udicial notice o' the shi't to urban centers and their
suburbs o' the insur)ency $ove$ent, so clearly re'lected in the increased killin)s in
cities o' police and $ilitary $en by #"; Esparro( units,E not to $ention the
abundance o' unlicensed 'irear$s and the alar$in) rise in la(lessness and violence
in such urban centers, not all o' (hich are reported in $edia, $ost likely brou)ht
about by deterioratin) econo$ic conditions H (hich all su$ up to (hat one can
ri)htly consider, at the very least, as abnor$al ti$es. /etween the inherent right of
the state to protect its e:istence and promote public welfare and an indi%idualIs right
against a warrantless search which is howe%er reasonabl' conducted- the former
should pre%ail.
+rue, the $annin) o' checkpoints by the $ilitary is susceptible o' abuse by the $en
in uni'or$ in the sa$e $anner that all )overn$ental po(er is susceptible o' abuse.
8ut, at the cost o' occasional inconvenience, disco$'ort and even irritation to the
citizen, the checkpoints durin) these abnor$al ti$es, (hen conducted (ithin
reasonable li$its, are part o' the price (e pay 'or an orderly society and a peace'ul
co$$unity. 27$phasis supplied3.
+hus, as bet(een a (arrantless search and seizure conducted at $ilitary or police checkpoints and
the search thereat in the case at bar, there is no Duestion that, indeed, the latter is $ore reasonable
considerin) that unlike in the 'or$er, it (as e''ected on the basis o' a probable cause. +he probable
cause is that (hen the petitioner acted suspiciously and atte$pted to 'lee (ith the buri ba) there
(as a probable cause that he (as concealin) so$ethin) ille)al in the ba) and it (as the ri)ht and
duty o' the police o''icers to inspect the sa$e.
:t is too $uch indeed to reDuire the police o''icers to search the ba) in the possession o' the
petitioner only a'ter they shall have obtained a search (arrant 'or the purpose. Such an e9ercise
$ay prove to be useless, 'utile and $uch too late.
:n 0eople %s. ,F3 of +izal,
2
this Court held as 'ollo(s*
. . . :n the ordinary cases (here (arrant is indispensably necessary, the $echanics
prescribed by the Constitution and reiterated in the <ules o' Court $ust be 'ollo(ed
and satis'ied. 8ut We need not ar)ue that there are e9ceptions. +hus in the
e9traordinary events (here (arrant is not necessary to e''ect a valid search or
seizure, or (hen the latter cannot be per'or$ed e9cept (ithout (arrant, (hat
constitutes a reasonable or unreasonable search or seizure beco$es purely a
>udicial Duestion, deter$inable 'ro$ the uniDueness o' the circu$stances involved,
includin) the purpose o' the search or seizure, the presence or absence o' probable
cause, the $anner in (hich the search and seizure (as $ade, the place or thin)
searched and the character o' the articles procured.
+he Court reproduces (ith approval the 'ollo(in) disDuisition o' the Solicitor @eneral*
+he assailed search and seizure $ay still be >usti'ied as akin to a Estop and 'riskE
situation (hose ob>ect is either to deter$ine the identity o' a suspicious individual or
to $aintain the status Duo $o$entarily (hile the police o''icer seeks to obtain $ore
in'or$ation. +his is illustrated in the case o'5err' %s. Ohio, 9! A.S. 1 2196J3. :n this
case, t(o $en repeatedly (alked past a store (indo( and returned to a spot (here
they apparently con'erred (ith a third $an. +his aroused the suspicion o' a police
o''icer. +o the e9perienced o''icer, the behaviour o' the $en indicated that they (ere
sizin) up the store 'or an ar$ed robbery. When the police o''icer approached the
$en and asked the$ 'or their na$es, they $u$bled a reply. Whereupon, the o''icer
)rabbed one o' the$, spun hi$ around and 'risked hi$. Findin) a concealed (eapon
in one, he did the sa$e to the other t(o and 'ound another (eapon. :n the
prosecution 'or the o''ense o' carryin) a concealed (eapon, the de'ense o' ille)al
search and seizure (as put up. +he Anited States Supre$e Court held that Ea police
o''icer $ay in appropriate circu$stances and in an appropriate $anner approach a
person 'or the purpose o' investi)atin) possible cri$inal behaviour even thou)h there
is no probable cause to $ake an arrest.E :n such a situation, it is reasonable 'or an
o''icer rather than si$ply to shru) his shoulder and allo( a cri$e to occur, to stop a
suspicious individual brie'ly in order to deter$ine his identity or $aintain thestatus
&uo (hile obtainin) $ore in'or$ation. . . .
Clearly, the search in the case at bar can be sustained under the e9ceptions hereto'ore discussed,
and hence, the constitutional )uarantee a)ainst unreasonable searches and seizures has not been
violated.
9
W,7<7F6<7, the petition is C7#:7C (ith costs a)ainst petitioner.
S6 6<C7<7C.
9ar%asa L,hairmanM- ,ruz- Gri#o-A&uino and Medialdea- ...- concur.
NNNN
G.R. No. 136292 Jnu/, 19, 2002
RU3# CABALLES , TA$=O, petitioner,
vs.
COURT O" A66EALS n! 6EO6LE O" THE 6H$L$66$NES, respondents.
6UNO, J.:
+his is an appeal by certiorari 'ro$ the decision
1
o' respondent Court o' ;ppeals dated Septe$ber
1/, 199J (hich a''ir$ed the >ud)$ent rendered by the <e)ional +rial Court o' Santa Cruz, %a)una,
'indin) herein petitioner, <udy Caballes y +aiTo, )uilty beyond reasonable doubt o' the cri$e o' the't,
and the resolution
!
dated #ove$ber 9, 199J (hich denied petitioner1s $otion 'or reconsideration.
:n an :n'or$ation
dated 6ctober 16, 19J9, petitioner (as char)ed (ith the cri$e o' the't co$$itted
as 'ollo(s*
E+hat on or about the !Jth day o' June, 19J9, in the &unicipality o' "a)san>an, andBor
else(here in the "rovince o' %a)una, and (ithin the >urisdiction o' this ,onorable Court, the
above-na$ed accused, (ith intent o' )ain, and (ithout the kno(led)e and consent o' the
o(ner thereo', the #;+:6#;% "6W7< C6<"6<;+:6#, did then and there (il'ully,
unla('ully and 'eloniously take, steal and carry a(ay about 65-k) o' ;lu$inu$ Cable
Conductors, valued at "!0, 4/5.55, belon)in) to and to the da$a)e and pre>udice o' said
o(ner #ational "o(er Corp., in the a'oresaid a$ount.
C6#+<;<- +6 %;W.E
Curin) the arrai)n$ent, petitioner pleaded not )uilty and hence, trial on the $erits ensued.
+he 'acts are su$$arized by the appellate court as 'ollo(s*
EF;tG about 9*1/ p.$. o' June !J, 19J9, S)t. ?ictorino #oce>a and "at. ;le9 de Castro, (hile
on a routine patrol in 8aran)ay Sa$palucan, "a)san>an, %a)una, spotted a passen)er >eep
unusually covered (ith Ekaka(atiE leaves.
Suspectin) that the >eep (as loaded (ith s$u))led )oods, the t(o police o''icers 'la))ed
do(n the vehicle. +he >eep (as driven by appellant. When asked (hat (as loaded on the
>eep, he did not ans(er= he appeared pale and nervous.
With appellant1s consent, the police o''icers checked the car)o and they discovered bundles
o' .5J $$ alu$inu$B)alvanized conductor (ires e9clusively o(ned by #ational "o(er
Corporation 2#"C3. +he conductor (ires (ei)hed 055 kilos and valued at "//, !44.4/.
#oce>a asked appellant (here the (ires ca$e 'ro$ and appellant ans(ered that they ca$e
'ro$ Cavinti, a to(n appro9i$ately J kilo$eters a(ay 'ro$ Sa$palucan. +herea'ter,
appellant and the vehicle (ith the hi)h-volta)e (ires (ere brou)ht to the "a)san>an "olice
Station. Canilo Cabale took pictures o' the appellant and the >eep loaded (ith the (ires
(hich (ere turned over to the "olice Station Co$$ander o' "a)san>an, %a)una. ;ppellant
(as incarcerated 'or 0 days in the &unicipal >ail.
:n de'ense, appellant interposed denial and alibi. ,e testi'ied that he is a driver and resident
o' "a)san>an, %a)una= a #;<C6& civilian a)ent since January, 19JJ althou)h his
identi'ication card 2:C3 has already e9pired. :n the a'ternoon o' June !J, 19J9, (hile he (as
drivin) a passen)er >eepney, he (as stopped by one <esty Fernandez (ho reDuested hi$ to
transport in his >eepney conductor (ires (hich (ere in Cavinti, %a)una. ,e told <esty to (ait
until he had 'inished his last trip 'or the day 'ro$ Santa Cruz, %a)una. 6n his (ay to Santa
Cruz, %a)una, he dropped by the #;<C6& headDuarters and in'or$ed his superior, S)t.
Callos, that so$ethin) unla('ul (as )oin) to happen. S)t. Callos advised hi$ to proceed
(ith the loadin) o' the (ires and that the 'or$er (ould act as back-up and intercept the
vehicle at the Sa$bat "atrol 8ase in "a)san>an.
;'ter receivin) those instructions, he (ent back to see <esty. ;lthou)h <esty had his o(n
vehicle, its tires (ere old so the cable (ires (ere loaded in appellant1s >eep and covered (ith
kaka(ati leaves. +he loadin) (as done by about 'ive 2/3 $asked $en. ,e (as
pro$ised "1,555.55 'or the >ob. Apon crossin) a brid)e, the t(o vehicles separated but in
his case, he (as intercepted by S)t. #oce>a and "at. Ce Castro. When they discovered the
cables, he told the police o''icers that the cables (ere loaded in his >eep by the o(ner, <esty
Fernandez. 8ut despite his e9planation, he (as ordered to proceed to police headDuarters
(here he (as interro)ated. +he police o''icers did not believe hi$ and instead locked hi$ up
in >ail 'or a (eek.E
4
6n ;pril !0, 199, the court a &uo rendered >ud)$ent
/
the dispositive portion o' (hich reads*
EW,7<7F6<7, 'indin) the accused )uilty beyond reasonable doubt o' the cri$e o' +he't o'
property (orth"//,!44.4/, the Court hereby sentences hi$ to su''er i$prison$ent 'ro$
+W6 2!3 F-7;<SG, F6A< 243 &6#+,S, and 6#7 213 C;- o' "rision Correccional, as
$ini$u$, to +7# 2153 -7;<S o' "rision &ayor, as $a9i$u$, to inde$ni'y the co$plainant
#ational "o(er Corporation in the a$ount o' "//, !44.4/, and to pay the costs.E
6n appeal, the Court o' ;ppeals a''ir$ed the >ud)$ent o' conviction but deleted the a(ard 'or
da$a)es on the )round that the stolen $aterials (ere recovered and $odi'ied the penalty i$posed,
to (it*
EW,7<7F6<7, the appealed decision is hereby ;FF:<&7C (ith the $odi'ication that
appellant <AC- C;8;%%7S is 'ound )uilty beyond reasonable doubt as principal in the't,
de'ined and penalized under ;rticles 5J and 59, par. 1, <evised "enal Code, and there
bein) no $odi'yin) circu$stances, he is hereby $eted an indeter$inate penalty o' Four 243
years, #ine 293 $onths and 7leven 2113 days o' prision correccional, as $ini$u$ ter$, to
7i)ht 2J3 years, 7i)ht 2J3 $onths and one 213 day o' prision $ayor, as $a9i$u$ ter$. #o
civil inde$nity and no costs.E
6
"etitioner co$es be'ore us and raises the 'ollo(in) issues*
E2a3 Whether or not the constitutional ri)ht o' petitioner (as violated (hen the police o''icers
searched his vehicle and seized the (ires 'ound therein (ithout a search (arrant and (hen
sa$ples o' the (ires and re'erences to the$ (ere ad$itted in evidence as basis 'or his
conviction=
2b3 Whether or not respondent Court erred in re>ectin) petitioner1s de'ense that he (as
en)a)ed in an entrap$ent operation and in indul)in) in speculation and con>ecture in
re>ectin) said de'ense= and
2c3 Whether or not the evidence o' the prosecution 'ailed to establish the )uilt o' petitioner
beyond reasonable doubt and thus 'ailed to overco$e the constitutional ri)ht o' petitioner to
presu$ption o' innocence.E
+he conviction or acDuittal o' petitioner hin)es pri$arily on the validity o' the (arrantless search and
seizure $ade by the police o''icers, and the ad$issibility o' the evidence obtained by virtue thereo'.
:n holdin) that the (arrantless search and seizure is valid, the trial court ruled that*
E;s his last stra( o' ar)u$ent, the accused Duestions the constitutionality o' the search and
validity o' his arrest on the )round that no (arrant (as issued to that e''ect. +he Court
cannot a)ain sustain such vie(. :n the case o' "eople v. %o ,o FWin)G, @.<. #o. JJ510,
January !1, 1991, it has been held that 1considerin) that be'ore a (arrant can be obtained,
the place, thin)s and persons to be searched $ust be described to the satis'action o' the
issuin) >ud)e - a reDuire$ent (hich borders on the i$possible in the case o' s$u))lin)
e''ected by the use o' a $ovin) vehicle that can transport contraband 'ro$ one place to
another (ith i$punity, a (arrantless search o' a $ovin) vehicle is >usti'ied on )rounds o'
practicability.1 +he doctrine is not o' recent vinta)e. :n the case o' ?al$onte vs. de ?illa, @.<.
#o. J9JJ, &ay !4, 1995 2<esolution on &otion 'or <econsideration, Septe$ber !9, 19J93,
it (as ruled that 1auto$obiles because o' their $obility $ay be searched (ithout a (arrant
upon 'acts not >usti'yin) (arrantless search o' a resident or o''ice. 9 9 9 +o hold that no
cri$inal can, in any case, be arrested and searched 'or the evidence and tokens o' his cri$e
(ithout a (arrant, (ould be to leave society, to a lar)e e9tent, at the $ercy o' the shre(dest,
the $ost e9pert, and the $ost depraved o' cri$inals, 'acilitatin) their escape in $any
instances1 2:bid.3. :n A$il v. <a$os, 1J0 SC<; 11, and "eople vs. 6rtiz, 191 SC<; J6, the
Supre$e Court held that a search $ay be $ade even (ithout a (arrant (here the accused
is cau)ht in 'la)rante. Ander the circu$stances, the police o''icers are not only authorized
but are also under obli)ation to arrest the accused even (ithout a (arrant.E
0
"etitioner contends that the 'la))in) do(n o' his vehicle by police o''icers (ho (ere on routine
patrol, $erely on EsuspicionE that Eit $i)ht contain s$u))led )oods,E does not constitute probable
cause that (ill >usti'y a (arrantless search and seizure. ,e insists that, contrary to the 'indin)s o' the
trial court as adopted by the appellate court, he did not )ive any consent, e9press or i$plied, to the
search o' the vehicle. "er'orce, any evidence obtained in violation o' his ri)ht a)ainst unreasonable
search and seizure shall be dee$ed inad$issible.
7nshrined in our Constitution is the inviolable ri)ht o' the people to be secure in their persons and
properties a)ainst unreasonable searches and seizures, as de'ined under Section !, ;rticle :::
thereo', (hich reads*
ESec. !. +he ri)ht o' the people to be secure in their persons, houses, papers, and e''ects
a)ainst unreasonable searches and seizures o' (hatever nature and 'or any purpose shall
be inviolable, and no search (arrant or (arrant o' arrest shall issue e9cept upon probable
cause to be deter$ined personally by the >ud)e a'ter e9a$ination under oath or a''ir$ation
o' the co$plainant and the (itnesses he $ay produce, and particularly describin) the place
to be searched and the persons or thin)s to be seized.E
+he e9clusionary rule under Section 2!3, ;rticle ::: o' the Constitution bars the ad$ission o'
evidence obtained in violation o' such ri)ht.
+he constitutional proscription a)ainst (arrantless searches and seizures is not absolute but ad$its
o' certain e9ceptions, na$ely* 213 (arrantless search incidental to a la('ul arrest reco)nized under
Section 1!, <ule 1!6 o' the <ules o' Court and by prevailin) >urisprudence=
J
2!3 seizure o' evidence
in plain vie(=
9
23 search o' $ovin) vehicles=
15
243 consented (arrantless search=
11
2/3 custo$s
search= 263 stop and 'risk situations 2+erry search3=
1!
and 203 e9i)ent and e$er)ency circu$stances.
1
:n cases (here (arrant is necessary, the steps prescribed by the Constitution and reiterated in the
<ules o' Court $ust be co$plied (ith. :n the e9ceptional events (here (arrant is not necessary to
e''ect a valid search or seizure, or (hen the latter cannot be per'or$ed e9cept (ithout a (arrant,
(hat constitutes a reasonable or unreasonable search or seizure is purely a >udicial Duestion,
deter$inable 'ro$ the uniDueness o' the circu$stances involved, includin) the purpose o' the
search or seizure, the presence or absence o' probable cause, the $anner in (hich the search and
seizure (as $ade, the place or thin) searched and the character o' the articles procured.
14
:t is not controverted that the search and seizure conducted by the police o''icers in the case at bar
(as not authorized by a search (arrant. +he $ain issue is (hether the evidence taken 'ro$ the
(arrantless search is ad$issible a)ainst the appellant. Without said evidence, the prosecution
cannot prove the )uilt o' the appellant beyond reasonable doubt.Nwphi .nOt
3. Search of mo%ing %ehicle
,i)hly re)ulated by the )overn$ent, the vehicle1s inherent $obility reduces e9pectation o' privacy
especially (hen its transit in public thorou)h'ares 'urnishes a hi)hly reasonable suspicion a$ountin)
to probable cause that the occupant co$$itted a cri$inal activity.
1/
+hus, the rules )overnin) search
and seizure have over the years been steadily liberalized (henever a $ovin) vehicle is the ob>ect o'
the search on the basis o' practicality. +his is so considerin) that be'ore a (arrant could be obtained,
the place, thin)s and persons to be searched $ust be described to the satis'action o' the issuin)
>ud)e H a reDuire$ent (hich borders on the i$possible in the case o' s$u))lin) e''ected by the use
o' a $ovin) vehicle that can transport contraband 'ro$ one place to another (ith i$punity. We $i)ht
add that a (arrantless search o' a $ovin) vehicle is >usti'ied on the )round that it is not practicable
to secure a (arrant because the vehicle can be Duickly $oved out o' the locality or >urisdiction in
(hich the (arrant $ust be sou)ht.
16
Searches (ithout (arrant o' auto$obiles is also allo(ed 'or the
purpose o' preventin) violations o' s$u))lin) or i$$i)ration la(s, provided such searches are
$ade at borders or 1constructive borders1 like checkpoints near the boundary lines o' the State.
10
+he $ere $obility o' these vehicles, ho(ever, does not )ive the police o''icers unli$ited discretion to
conduct indiscri$inate searches (ithout (arrants i' $ade (ithin the interior o' the territory and in the
absence o' probable cause.
1J
Still and all, the i$portant thin) is that there (as probable cause to
conduct the (arrantless search, (hich $ust still be present in such a case.
;lthou)h the ter$ eludes e9act de'inition, probable cause si)ni'ies a reasonable )round o' suspicion
supported by circu$stances su''iciently stron) in the$selves to (arrant a cautious $an1s belie' that
the person accused is )uilty o' the o''ense (ith (hich he is char)ed= or the e9istence o' such 'acts
and circu$stances (hich could lead a reasonably discreet and prudent $an to believe that an
o''ense has been co$$itted and that the ite$s, articles or ob>ects sou)ht in connection (ith said
o''ense or sub>ect to seizure and destruction by la( is in the place to be searched.
19
+he reDuired
probable cause that (ill >usti'y a (arrantless search and seizure is not deter$ined by a 'i9ed 'or$ula
but is resolved accordin) to the 'acts o' each case.
!5
6ne such 'or$ o' search o' $ovin) vehicles is the Estop-and-searchE (ithout (arrant at $ilitary or
police checkpoints (hich has been declared to be not ille)al per se,
!1
'or as lon) as it is (arranted by
the e9i)encies o' public order
!!
and conducted in a (ay least intrusive to $otorists.
!
; checkpoint
$ay either be a $ere routine inspection or it $ay involve an e9tensive search.
<outine inspections are not re)arded as violative o' an individual1s ri)ht a)ainst unreasonable
search. +he search (hich is nor$ally per$issible in this instance is li$ited to the 'ollo(in) instances*
213 (here the o''icer $erely dra(s aside the curtain o' a vacant vehicle (hich is parked on the public
'air )rounds=
!4
2!3 si$ply looks into a vehicle=
!/
23 'lashes a li)ht therein (ithout openin) the car1s
doors=
!6
243 (here the occupants are not sub>ected to a physical or body search=
!0
2/3 (here the
inspection o' the vehicles is li$ited to a visual search or visual inspection=
!J
and 263 (here the routine
check is conducted in a 'i9ed area.
!9
#one o' the 'ore)oin) circu$stances is obtainin) in the case at bar. +he police o''icers did not
$erely conduct a visual search or visual inspection o' herein petitioner1s vehicle. +hey had to reach
inside the vehicle, li't the kaka(ati leaves and look inside the sacks be'ore they (ere able to see the
cable (ires. :t cannot be considered a si$ple routine check.
:n the case o' Un&+e! S++e( :(. 6&e//e,
5
the Court held that the physical intrusion o' a part o' the
body o' an a)ent into the vehicle )oes beyond the area protected by the Fourth ;$end$ent, to (it*
E+he ;)ent . . . stuck his head throu)h the driver1s side (indo(. +he a)ent thus e''ected a
physical intrusion into the vehicle. . . FWGe are a(are o' no case holdin) that an o''icer did not
conduct a search (hen he physically intruded part o' his body into a space in (hich the
suspect had a reasonable e9pectation o' privacy. F+heG ;)entF1sG . . . physical intrusion
allo(ed hi$ to see and to s$ell thin)s he could not see or s$ell 'ro$ outside the vehicle. . .
:n doin) so, his inspection (ent beyond that portion o' the vehicle (hich $ay be vie(ed 'ro$
outside the vehicle by either inDuisitive passersby or dili)ent police o''icers, and into the area
protected by the Fourth a$end$ent, >ust as $uch as i' he had stuck his head inside the
open (indo( o' a ho$e.E
6n the other hand, (hen a vehicle is stopped and sub>ected to an e9tensive search, such a
(arrantless search (ould be constitutionally per$issible only i' the o''icers conductin) the search
have reasonable or probable cause to believe, be'ore the search, that either the $otorist is a la(-
o''ender or they (ill 'ind the instru$entality or evidence pertainin) to a cri$e in the vehicle to be
searched.
1
+his Court has in the past 'ound probable cause to conduct (ithout a >udicial (arrant an e9tensive
search o' $ovin) vehicles in situations (here 213 there had e$anated 'ro$ a packa)e the distinctive
s$ell o' $ari>uana= 2!3 a)ents o' the #arcotics Co$$and 2E#arco$E3 o' the "hilippine #ational
"olice 2E"#"E3 had received a con'idential report 'ro$ in'or$ers that a sizeable volu$e o' $ari>uana
(ould be transported alon) the route (here the search (as conducted= 23 #arco$ a)ents had
received in'or$ation that a Caucasian co$in) 'ro$ Sa)ada, &ountain "rovince, had in his
possession prohibited dru)s and (hen the #arco$ a)ents con'ronted the accused Caucasian,
because o' a conspicuous bul)e in his (aistline, he 'ailed to present his passport and other
identi'ication papers (hen reDuested to do so= 243 #arco$ a)ents had received con'idential
in'or$ation that a (o$an havin) the sa$e physical appearance as that o' the accused (ould be
transportin) $ari>uana=
!
2/3 the accused (ho (ere ridin) a >eepney (ere stopped and searched by
police$en (ho had earlier received con'idential reports that said accused (ould transport a lar)e
Duantity o' $ari>uana= and 263 (here the $ovin) vehicle (as stopped and searched on the basis o'
intelli)ence in'or$ation and clandestine reports by a deep penetration a)ent or spy - one (ho
participated in the dru) s$u))lin) activities o' the syndicate to (hich the accused belon)ed - that
said accused (ere brin)in) prohibited dru)s into the country.
:n the case at bar, the vehicle o' the petitioner (as 'la))ed do(n because the police o''icers (ho
(ere on routine patrol beca$e suspicious (hen they sa( that the back o' the vehicle (as covered
(ith kaka(ati leaves (hich, accordin) to the$, (as unusual and unco$$on.
"at. ;le9 de Castro recounted the incident as 'ollo(s*
E;++-. S;#+6S
L #o( on said date and ti$e do you re$e$ber o' any unusual incident (hile you (ere
per'or$in) your dutyI
; -es, sir, at that ti$e and date $ysel' and "olice S)t. #oce>a (ere conductin) patrol in
the said place (hen (e spotted a suspicious >eepney so (e stopped the >eepney and
searched the load o' the >eepney and (e 'ound out 2sic3 these conductor (ires.
L -ou $entioned about the 'act that (hen you sa( the >eepney you beca$e
suspicious, B', !&! ,ou 4e)o.e (u(*&)&ou(C
; Be)u(e +'e )/-o B( )o:e/e! B&+' 8e:e( n! 4/n)'e(, (&/.
L When you beca$e suspicious upon seein) those leaves on top o' the load (hat did
you do ne9t, i' anyI
; We stopped the >eepney and searched the contents thereo', sir.E
4
+he testi$ony o' ?ictorino #oce>a did not 'are any better*
E;++- S;#+6S
L When you sa( the accused drivin) the said vehicle, (hat did you doI
; Be)u(e $ (B +'+ +'e :e'&)8e 4e&n- !/Bn 4, C488e( B( )o:e/e! 4,
DDB+& 8e:e(, $ 4e).e (u(*&)&ou( (&n)e (u)' :e'&)8e ('ou8! no+ 4e )o:e/e! 4,
+'o(e n! $ 08--e! '&., (&/.E
/
We hold that the 'act that the vehicle looked suspicious si$ply because it is not co$$on 'or such to
be covered (ith kaka(ati leaves does not constitute Eprobable causeE as (ould >usti'y the conduct o'
a search (ithout a (arrant.
:n 6eo*8e :(. C'u Ho Sn,
6
(e held that the 'act that the (atercra't used by the accused (as
di''erent in appearance 'ro$ the usual 'ishin) boats that co$$only cruise over the 8acnotan seas
coupled (ith the suspicious behavior o' the accused (hen he atte$pted to 'lee 'ro$ the police
authorities do not su''iciently establish probable cause. +hus*
E:n the case at bar, the Solicitor @eneral proposes that the 'ollo(in) details are su))estive o'
probable cause - persistent reports o' ra$pant s$u))lin) o' 'irear$ and other contraband
articles, C,A;1s (atercra't di''erin) in appearance 'ro$ the usual 'ishin) boats that
co$$only cruise over the 8acnotan seas, C,A;1s ille)al entry into the "hilippines 9 9 9,
C,A;1s suspicious behavior, i.e., he atte$pted to 'lee (hen he sa( the police authorities,
and the apparent ease by (hich C,A; can return to and navi)ate his speedboat (ith
i$$ediate dispatch to(ards the hi)h seas, beyond the reach o' "hilippine la(s.
+his Court, ho(ever, 'inds that these do not constitute Eprobable cause.E #one o' the telltale
clues, e.)., ba) or packa)e e$anatin) the pun)ent odor o' $ari>uana or other prohibited
dru), con'idential report andBor positive identi'ication by in'or$ers o' courier o' prohibited
dru) andBor the ti$e and place (here they (ill transportBdeliver the sa$e, suspicious
de$eanor or behavior, and suspicious bul)e in the (aist - accepted by this Court as
su''icient to >usti'y a (arrantless arrest e9ists in this case. +here (as no classi'ied
in'or$ation that a 'orei)ner (ould dise$bark at +a$$ocalao beach bearin) prohibited dru)
on the date in Duestion. C,A; (as not identi'ied as a dru) courier by a police in'or$er or
a)ent. T'e 0)+ +'+ +'e :e((e8 +'+ 0e//&e! '&. +o ('o/e 4o/e no /e(e.48n)e +o +'e
0&('&n- 4o+( o0 +'e /e !&! no+ u+o.+&)88, ./D '&. ( &n +'e */o)e(( o0
*e/*e+/+&n- n o00en(e. 9 9 9.E 2emphasis supplied3
:n addition, the police authorities do not clai$ to have received any con'idential report or tipped
in'or$ation that petitioner (as carryin) stolen cable (ires in his vehicle (hich could other(ise have
sustained their suspicion. 6ur >urisprudence is replete (ith cases (here tipped in'or$ation has
beco$e a su''icient probable cause to e''ect a (arrantless search and seizure.
0
An'ortunately, none
e9ists in this case.
33. 0lain %iew doctrine
:t cannot like(ise be said that the cable (ires 'ound in petitioner1s vehicle (ere in plain vie(, $akin)
its (arrantless seizure valid.
Jurisprudence is to the e''ect that an ob>ect is in plain vie( i' the ob>ect itsel' is plainly e9posed to
si)ht. Where the ob>ect seized (as inside a closed packa)e, the ob>ect itsel' is not in plain vie( and
there'ore cannot be seized (ithout a (arrant. ,o(ever, i' the packa)e proclai$s its contents,
(hether by its distinctive con'i)uration, its transparency, or i' its contents are obvious to an observer,
then the contents are in plain vie( and $ay be seized. :n other (ords, i' the packa)e is such that an
e9perienced observer could in'er 'ro$ its appearance that it contains the prohibited article, then the
article is dee$ed in plain vie(. :t $ust be i$$ediately apparent to the police that the ite$s that they
observe $ay be evidence o' a cri$e, contraband or other(ise sub>ect to seizure.
J
:t is clear 'ro$ the records o' this case that the cable (ires (ere not e9posed to si)ht because they
(ere placed in sacks
9
and covered (ith leaves. +he articles (ere neither transparent nor
i$$ediately apparent to the police authorities. +hey had no clue as to (hat (as hidden underneath
the leaves and branches. ;s a $atter o' 'act, they had to ask petitioner (hat (as loaded in his
vehicle. :n such a case, it has been held that the ob>ect is not in plain vie( (hich could have >usti'ied
$ere seizure o' the articles (ithout 'urther search.
45
333. ,onsented search
"etitioner contends that the state$ent o' S)t. ?ictorino #oce>a that he checked the vehicle E(ith the
consent o' the accusedE is too va)ue to prove that petitioner consented to the search. ,e clai$s that
there is no speci'ic state$ent as to ho( the consent (as asked and ho( it (as )iven, nor the
speci'ic (ords spoken by petitioner indicatin) his alle)ed Econsent.E ;t $ost, there (as only an
i$plied acDuiescence, a $ere passive con'or$ity, (hich is no EconsentE at all (ithin the purvie( o'
the constitutional )uarantee.
Coubtless, the constitutional i$$unity a)ainst unreasonable searches and seizures is a personal
ri)ht (hich $ay be (aived. +he consent $ust be voluntary in order to validate an other(ise ille)al
detention and search, i.e., the consent is uneDuivocal, speci'ic, and intelli)ently )iven,
unconta$inated by any duress or coercion.
41
,ence, consent to a search is not to be li)htly in'erred,
but $ust be sho(n by clear and convincin) evidence.
4!
+he Duestion (hether a consent to a search
(as in 'act voluntary is a Duestion o' 'act to be deter$ined 'ro$ the totality o' all the
circu$stances.
4
<elevant to this deter$ination are the 'ollo(in) characteristics o' the person )ivin)
consent and the environ$ent in (hich consent is )iven* 213 the a)e o' the de'endant= 2!3 (hether he
(as in a public or secluded location= 23 (hether he ob>ected to the search or passively looked
on=
44
243 the education and intelli)ence o' the de'endant= 2/3 the presence o' coercive police
procedures= 263 the de'endant1s belie' that no incri$inatin) evidence (ill be 'ound=
4/
203 the nature o'
the police Duestionin)= 2J3 the environ$ent in (hich the Duestionin) took place= and 293 the possibly
vulnerable sub>ective state o' the person consentin).
46
:t is the State (hich has the burden o'
provin), by clear and positive testi$ony, that the necessary consent (as obtained and that it (as
'reely and voluntarily )iven.
40
:n the case at bar, S)t. ?ictorino #oce>a testi'ied on the $anner in (hich the search (as conducted
in this (ise*
EW:+#7SS
L 6n June !J, 19J9, (here (ere youI
; We (ere conductin) patrol at the poblacion and so$e baran)ays, sir.
9 9 9 9 9 9 9 9 9
L ;'ter conductin) the patrol operation, do you re$e$ber o' any unusual incident on
said date and ti$eI
; -es, sir.
L What is that incidentI
; While : (as conductin) $y patrol at baran)ay Sa$palucan, : sa( <udy Caballes
drivin) a vehicle and the vehicle contained alu$inu$ (ires, sir.
9 9 9 9 9 9 9 9 9
L When you sa( the accused drivin) the said vehicle, (hat did you doI
; 8ecause : sa( that the vehicle bein) driven by Caballes (as covered by kaka(ati
leaves, : beca$e suspicious since such vehicle should not be covered by those and :
'la))ed hi$, sir.
L Cid the vehicle stopI
; #e(, (&/, n! 0+e/ (&! :e'&)8e (+o*F*e!G, $ /e.o:e! +'e )o:e/ o0 (&! :e'&)8e n!
4, (o !o&n-, $ (B +'e 8u.&nu. B&/e(.
L 8e'ore you sa( the alu$inu$ (ires, did you talk to the accusedI
; -es, sir, : asked hi$ (hat his load (as.
L What (as the ans(er o' CaballesI
; He !&! no+ n(Be/ n! $ o4(e/:e! '&. +o 4e *8e, En-**.u+8E @sicA, (o $ +o8!
'&. $ B&88 8ooD + +'e )on+en+( o0 '&( :e'&)8e n! 'e n(Be/e! &n +'e *o(&+&:e.
L ;nd a'ter you sa( 'or yoursel' the alu$inu$ (ires loaded on the >eep, (hat did you
doI
; : asked hi$ (here those (ires ca$e 'ro$ and he ans(ered those ca$e 'ro$ the
Cavinti area, sir.E
4J
+his Court is not un$ind'ul o' cases upholdin) the validity o' consented (arrantless searches and
seizure. 8ut in these cases, the police o''icers1 reDuest to search personnel e''ects (as orally
articulated to the accused and in such lan)ua)e that le't no roo$ 'or doubt that the latter 'ully
understood (hat (as reDuested. :n so$e instance, the accused even verbally replied to the reDuest
de$onstratin) that he also understood the nature and conseDuences o' such reDuest.
49
:n A(un)&on :(. Cou/+ o0 A**e8(,
/5
the apprehendin) o''icers sou)ht the per$ission o' petitioner
to search the car, to (hich the latter a)reed. "etitioner therein hi$sel' 'reely )ave his consent to said
search. :n 6eo*8e :(. L)e/n,
/1
the appellants (ho (ere ridin) in a ta9i (ere stopped by t(o
police$en (ho asked per$ission to search the vehicle and the appellants readily a)reed. :n
upholdin) the validity o' the consented search, the Court held that appellant hi$sel' (ho (as
Eurbanized in $anneris$ and speechE e9pressly said that he (as consentin) to the search as he
alle)edly had nothin) to hide and had done nothin) (ron). :n 6eo*8e :(. Cu&Hon,
/!
the accused
ad$itted that they si)ned a (ritten per$ission statin) that they 'reely consented to the search o'
their lu))a)e by the #8: a)ents to deter$ine i' they (ere carryin) shabu. :n 6eo*8e :(. Mon+&88,
/
it
(as held that the accused spontaneously per'or$ed a''ir$ative acts o' volition by hi$sel' openin)
the ba) (ithout bein) 'orced or inti$idated to do so, (hich acts should properly be construed as a
clear (aiver o' his ri)ht. :n 6eo*8e :(. O.Ben-,
/4
the police o''icers asked the accused i' they
could see the contents o' his ba) to (hich the accused said Eyou can see the contents but those are
only clothin)s.E +hen the police$en asked i' they could open and see it, and accused ans(ered Eyou
can see it.E +he Court said there (as a valid consented search.Nwphi .nOt
:n case o' consented searches or (aiver o' the constitutional )uarantee a)ainst obtrusive searches,
it is 'unda$ental that to constitute a (aiver, it $ust 'irst appear that 213 the ri)ht e9ists= 2!3 that the
person involved had kno(led)e, either actual or constructive, o' the e9istence o' such ri)ht= and 23
the said person had an actual intention to relinDuish the ri)ht.
//
:n the case at bar, the evidence is lackin) that the petitioner intentionally surrendered his ri)ht
a)ainst unreasonable searches. +he $anner by (hich the t(o police o''icers alle)edly obtained the
consent o' petitioner 'or the$ to conduct the search leaves $uch to be desired. When petitioner1s
vehicle (as 'la))ed do(n, S)t. #oce>a approached petitioner and E+o8! '&. $ B&88 8ooD + +'e
)on+en+( o0 '&( :e'&)8e n! 'e n(Be/e! &n +'e *o(&+&:e.E We are hard put to believe that by
utterin) those (ords, the police o''icers (ere askin) or reDuestin) 'or per$ission that they be
allo(ed to search the vehicle o' petitioner. For all intents and purposes, they (ere &n0o/.&n-, n,,
&.*o(&n- upon herein petitioner that they (ill search his vehicle. +he EconsentE )iven under
inti$idatin) or coercive circu$stances is no consent (ithin the purvie( o' the constitutional
)uaranty. :n addition, in cases (here this Court upheld the validity o' consented search, it (ill be
noted that the police authorities e9pressly asked, in no uncertain ter$s, 'or the consent o' the
accused to be searched. ;nd the consent o' the accused (as established by clear and positive
proo'. :n the case o' herein petitioner, the state$ents o' the police o''icers (ere no+ (D&n- 0o/ '&(
)on(en+= they (ere !e)8/&n- to hi$ that they (ill look inside his vehicle. 8esides, it is doubt'ul
(hether per$ission (as actually reDuested and )ranted because (hen S)t. #oce>a (as asked
durin) his direct e9a$ination (hat he did (hen the vehicle o' petitioner stopped, he ans(ered that
he re$oved the cover o' the vehicle and sa( the alu$inu$ (ires. :t (as only a'ter he (as asked a
clari'icatory Duestion that he added that he told petitioner he (ill inspect the vehicle. +o our $ind,
this (as $ore o' an a'terthou)ht. %ike(ise, (hen "at. de Castro (as asked t(ice in his direct
e9a$ination (hat they did (hen they stopped the >eepney, his consistent ans(er (as that they
searched the vehicle. ,e never testi'ied that he asked petitioner 'or per$ission to conduct the
search.
/6
#either can petitioner1s passive sub$ission be construed as an i$plied acDuiescence to the
(arrantless search. :n6eo*8e :(. B//o(,
/0
appellant 8arros, (ho (as carryin) a carton bo9,
boarded a bus (here t(o police$en (ere ridin). +he police$en inspected the carton and 'ound
$ari>uana inside. When asked (ho o(ned the bo9, appellant denied o(nership o' the bo9 and 'ailed
to ob>ect to the search. +he Court there struck do(n the (arrantless search as ille)al and held that
the accused is not to be presu$ed to have (aived the unla('ul search conducted si$ply because
he 'ailed to ob>ect, citin) the rulin) in the case o' 6eo*8e :(. Bu/-o(,
/J
to (itP
E;s the constitutional )uaranty is not dependent upon any a''ir$ative act o' the citizen, the
courts do not place the citizens in the position o' either contestin) an o''icer1s authority by
'orce, or (aivin) his constitutional ri)hts= but instead they hold that a peace'ul sub$ission to
a search or seizure is not a consent or an invitation thereto, but is $erely a de$onstration o'
re)ard 'or the supre$acy o' the la(.E
Castin) aside the cable (ires as evidence, the re$ainin) evidence on record are insu''icient to
sustain petitioner1s conviction. ,is )uilt can only be established (ithout violatin) the constitutional
ri)ht o' the accused a)ainst unreasonable search and seizure.
WHERE"ORE, the i$pu)ned decision is RE%ERSE3 and SET AS$3E, and accused <udy Caballes
is herebyAC<U$TTE3 o' the cri$e char)ed. Cost de o'icio.
SO OR3ERE3.
4a%ide- .r.- ,...- Hapunan- 0ardo and Qnares-Santiago- ...- concur.
FG.R. No. 132221. 3e)e.4e/ 12, 2000G
THE 6EO6LE O" THE 6H$L$66$NES, plaintiff-appellee, vs.LE$LA
JOHNSON # RE#ES, accused-appellant.
3 E C $ S $ O N
MEN3O1A, J.>
+his is an appeal 'ro$ the decision,
F1G
dated &ay 14, 1999, o' the <e)ional +rial
Court, 8ranch 115, "asay City, 'indin) accused-appellant %eila Johnson y <eyes
)uilty
o' violation o' U16 o' <.;. #o. 64!/ 2Can)erous Cru)s ;ct3, as a$ended by <.;. #o.
06/9, and sentencin) her to su''er the penalty o' reclusion perpetua and to pay a 'ine
o' "/55,555.55 and the costs o' the suit.
+he in'or$ation a)ainst accused-appellant alle)ed*
+hat on June !6, 199J inside the #inoy ;Duino :nternational ;irport, and
(ithin the >urisdiction o' this ,onorable Court, the above-na$ed ;ccused did
then and there (ill'ully, unla('ully and 'eloniously possess three plastic ba)s
o' $etha$pheta$ine hydrochloride, a re)ulated dru), each ba) (ei)hin)*
V1 6#7 ,A#C<7C 7:@,+- S7?7# "6:#+ F:?7 21J0./3 )ra$s=
V!
6#7 ,A#C<7C #:#7+- 7:@,+ "6:#+ R7<6 219J.53 )ra$s= and
V 6#7 ,A#C<7C #:#7+- F6A< "6:#+ S7?7# 2194.03 )ra$s,
respectively,
or a total o' "$%E HUN3RE3 E$GHT# 6O$NT TWO @920.2A -/.( o0
.e+'.*'e+.&ne ',!/o)'8o/&!e.
+hat the above-na$ed accused does not have the correspondin)
license or prescription to possess or use said re)ulated dru).
C6#+<;<- +6 %;W.
F!G
Apon bein) arrai)ned, accused-appellant pleaded not )uilty,
FG
(hereupon trial (as
held.
+he prosecution presented 'our (itnesses, na$ely, #8: Forensic Che$ist @eor)e
de %ara, S"64 <eynaldo 7$bile, duty 'risker 6livia <a$irez, and S"61 <izalina
8ernal. +he de'ense presented accused-appellant (ho testi'ied in her o(n behal'.
+he 'acts are as 'ollo(s*
;ccused-appellant %eila <eyes Johnson (as, at the ti$e o' the incident, /J years
old, a (ido(, and a resident o' 6cean Side, Cali'ornia, A.S.;. She is a 'or$er Filipino
citizen (ho (as naturalized as an ;$erican on June 16, 196J and had since been
(orkin) as a re)istered nurse, takin) care o' )eriatric patients and those (ith
;lzhei$erPs disease, in convalescent ho$es in the Anited States.
F4G
6n June 16, 199J, she arrived in the "hilippines to visit her sonPs 'a$ily in
Cala$ba, %a)una. She (as due to 'ly back to the Anited States on July !6. 6n July
!/, she checked in at the "hilippine ?illa)e ,otel to avoid the tra''ic on the (ay to the
#inoy ;Duino :nternational ;irport 2#;:;3 and checked out at /*5 p.$. the ne9t day,
June !6, 199J.
F/G
;t around 0*5 p.$. o' that day, 6livia <a$irez (as on duty as a lady 'risker at @ate
16 o' the #;:; departure area. ,er duty (as to 'risk departin) passen)ers,
e$ployees, and cre( and check 'or (eapons, bo$bs, prohibited dru)s, contraband
)oods, and e9plosives.
F6G
When she 'risked accused-appellant %eila Johnson, a departin) passen)er bound
'or the Anited States via Continental ;irlines CS-91!, she 'elt so$ethin) hard on the
latterPs abdo$inal area. Apon inDuiry, &rs. Johnson e9plained she needed to (ear t(o
panty )irdles as she had >ust under)one an operation as a result o' an ectopic
pre)nancy.
F0G
#ot satis'ied (ith the e9planation, <a$irez reported the $atter to her superior,
S"64 <eynaldo 7$bile, sayin) WSir- hindi po a(o naniniwalang pant' lang po i'on.X
2WSir, : do not believe that it is >ust a panty.X3 She (as directed to take accused-appellant
to the nearest (o$enPs roo$ 'or inspection. <a$irez took accused-appellant to the rest
roo$, acco$panied by S"61 <izalina 8ernal. 7$bile stayed outside.
FJG
:nside the (o$enPs roo$, accused-appellant (as asked a)ain by <a$irez (hat the
hard ob>ect on her sto$ach (as and accused-appellant )ave the sa$e ans(er she had
previously )iven. <a$irez then asked her Wto brin) out the thin) under her )irdle.X
;ccused-appellant brou)ht out three plastic packs, (hich <a$irez then turned over to
7$bile, outside the (o$enPs roo$.
F9G
+he con'iscated packs, $arked as 79hibits C-1, C-! and C-, contained a total o'
/J5.! )ra$s o' a substance (hich (as 'ound by #8: Che$ist @eor)e de %ara to be
$etha$pheta$ine hydrochloride or Wshabu.X
F15G
7$bile took accused-appellant and the plastic packs to the 1st <e)ional ;viation
and Security 6''ice 21st <;S63 at the arrival area o' the #;:;, (here accused-
appellantPs passport and ticket (ere taken and her lu))a)e opened. "ictures (ere
taken and her personal belon)in)s (ere ite$ized.
F11G
:n her de'ense, accused-appellant alle)ed that she (as standin) in line at the last
boardin) )ate (hen she (as approached by 7$bile and t(o 'e$ale o''icers. She
clai$ed she (as handcu''ed and taken to the (o$enPs roo$. +here, she (as asked to
undress and (as then sub>ected to a body search. She insisted that nothin) (as 'ound
on her person. She (as later taken to a roo$ 'illed (ith bo9es, )arba)e, and a
chair. ,er passport and her purse containin) YJ/5.55 and so$e chan)e (ere taken
'ro$ her, 'or (hich no receipt (as issued to her. ;'ter t(o hours, she said, she (as
trans'erred to the o''ice o' a certain Col. Castillo.
F1!G
;'ter another t(o hours, Col. Castillo and about ei)ht security )uards ca$e in and
thre( t(o (hite packa)es on the table. +hey told her to ad$it that the packa)es (ere
hers. 8ut she denied kno(led)e and o(nership o' the packa)es. She (as detained at
the 1st <;S6 o''ice until noon o' June !J, 1999 (hen she (as taken be'ore a 'iscal 'or
inDuest.
F1G
She clai$ed that throu)hout the period o' her detention, 'ro$ the ni)ht o'
June !6 until June !J, she (as never allo(ed to talk to counsel nor (as she allo(ed to
call the A.S. 7$bassy or any o' her relatives in the "hilippines.
F14G
6n &ay 14, 1999, the trial court rendered a decision, the dispositive portion o'
(hich reads*
F1/G
W,7<7F6<7, >ud)$ent is hereby rendered 'indin) the accused %7:%;
J6,#S6# - <7-7S, @A:%+- beyond reasonable doubt o' the o''ense o'
?iolation o' Section 16 o' <epublic ;ct 64!/ as a$ended and hereby i$poses
on her the penalty o' <7C%AS:6# "7<"7+A; and conde$ns said accused
to pay a 'ine o' F:?7 ,A#C<7C +,6AS;#C "7S6S 2"/55,555.553 (ithout
subsidiary i$prison$ent in case o' insolvency and to pay the costs o' suit.
+he ða$pheta$ine ,ydrochloride 2shabu3 havin) a total net (ei)ht o'
/J5.! )ra$s 279hibits W@X, WC-!X and WC-X3 are hereby con'iscated in 'avor o'
the )overn$ent and the 8ranch Clerk o' Court is hereby ordered to cause the
transportation thereo' to the Can)erous Cru)s 8oard 'or disposition in
accordance (ith la(.
+he accused shall be credited in 'ull 'or the period o' her detention at the City
Jail o' "asay City durin) the pendency o' this case provided that she a)reed
in (ritin) to abide by and co$ply strictly (ith the rules and re)ulations o' the
City Jail.
S6 6<C7<7C.
;ccused-appellant contends that the trial court convicted her* 213 Wdespite 'ailure o'
the prosecution in provin) the ne)ative alle)ation in the in'or$ation=X 2!3 Wdespite 'ailure
o' the prosecution in provin) the Duantity o' $etha$pheta$ine hydrochloride=X 23
Wdespite violation o' her constitutional ri)hts=X and 243 W(hen )uilt (as not proven beyond
reasonable doubt.X
F16G
First. ;ccused-appellant clai$s that she (as arrested and detained in )ross
violation o' her constitutional ri)hts. She ar)ues that the WshabuX con'iscated 'ro$ her is
inad$issible a)ainst her because she (as 'orced to a''i9 her si)nature on the plastic
ba)s (hile she (as detained at the 1
st
<;S6 o''ice, (ithout the assistance o' counsel
and (ithout havin) been in'or$ed o' her constitutional ri)hts. ,ence, she ar)ues, the
$etha$pheta$ine hydrochloride, or Wshabu,X should have been e9cluded 'ro$ the
evidence.
F10G
+he contention has no $erit. #o state$ent, i' any, (as taken 'ro$ accused-
appellant durin) her detention and used in evidence a)ainst her. +here is, there'ore, no
basis 'or accused-appellantPs invocation o' ;rt. :::, U1!213 and 23. 6n the other hand,
(hat is involved in this case is an arrest in flagrante delicto pursuant to a valid search
$ade on her person.
+he trial court held*
+he constitutional ri)ht o' the accused (as not violated as she (as never
placed under custodial investi)ation but (as validly arrested (ithout (arrant
pursuant to the provisions o' Section /, <ule 11 o' the 19J/ <ules o'
Cri$inal "rocedure (hich provides*
Sec. /. ;rrest (ithout (arrant= (hen la('ul. ; peace o''icer or a private person $ay,
(ithout a (arrant, arrest a person*
2a3 (hen in his presence, the person to be arrested has co$$itted, is actually
co$$ittin), or is atte$ptin) to co$$it an o''ense=
2b3 (hen an o''ense has in 'act >ust been co$$itted, and he has personal
kno(led)e o' 'acts indicatin) that the person to be arrested has co$$itted it= and
2Anderscorin) supplied3
9 9 9 9
; custodial investi)ation has been de'ined in "eople. v. ;yson 10/ SC<; !5
as Wthe Duestionin) initiated by la( en'orce$ent o''icers a'ter a person has
been taken FinG custody or other(ise deprived o' his 'reedo$ in any si)ni'icant
(ay. +his presupposes that he is suspected o' havin) co$$itted an o''ense
and that the investi)ator is tryin) to elicit in'or$ation or FaG con'ession 'ro$
hi$.E
+he circu$stances surroundin) the arrest o' the accused above 'alls in either
para)raph 2a3 or 2b3 o' the <ule above cited, hence the alle)ation that she has
been sub>ected to custodial investi)ation is 'ar 'ro$ bein) accurate.
F1JG
+he $etha$pheta$ine hydrochloride seized 'ro$ her durin) the routine 'risk at the
airport (as acDuired le)iti$ately pursuant to airport security procedures.
"ersons $ay lose the protection o' the search and seizure clause by e9posure o'
their persons or property to the public in a $anner re'lectin) a lack o' sub>ective
e9pectation o' privacy, (hich e9pectation society is prepared to reco)nize as
reasonable.
F19G
Such reco)nition is i$plicit in airport security procedures. With increased
concern over airplane hi>ackin) and terroris$ has co$e increased security at the
nationPs airports. "assen)ers atte$ptin) to board an aircra't routinely pass throu)h
$etal detectors= their carry-on ba))a)e as (ell as checked lu))a)e are routinely
sub>ected to 9-ray scans. Should these procedures su))est the presence o' suspicious
ob>ects, physical searches are conducted to deter$ine (hat the ob>ects are. +here is
little Duestion that such searches are reasonable, )iven their $ini$al intrusiveness, the
)ravity o' the sa'ety interests involved, and the reduced privacy e9pectations associated
(ith airline travel.
F!5G
:ndeed, travelers are o'ten noti'ied throu)h airport public address
syste$s, si)ns, and notices in their airline tickets that they are sub>ect to search and, i'
any prohibited $aterials or substances are 'ound, such (ould be sub>ect to
seizure. +hese announce$ents place passen)ers on notice that ordinary constitutional
protections a)ainst (arrantless searches and seizures do not apply to routine airport
procedures.
+he packs o' $etha$pheta$ine hydrochloride havin) thus been obtained throu)h a
valid (arrantless search, they are ad$issible in evidence a)ainst the accused-appellant
herein. Corollarily, her subseDuent arrest, althou)h like(ise (ithout (arrant, (as
>usti'ied since it (as e''ected upon the discovery and recovery o' WshabuX in her
person in flagrante delicto.
;nent her alle)ation that her si)nature on the said packs 279hibits C-1, C-! and C-
herein3 had been obtained (hile she (as in the custody o' the airport authorities (ithout
the assistance o' counsel, the Solicitor @eneral correctly points out that no(here in the
records is it indicated that accused-appellant (as reDuired to a''i9 her si)nature to the
packs. :n 'act, only the si)natures o' 7$bile and <a$irez thereon, alon) (ith their
testi$ony to that e''ect, (ere presented by the prosecution in provin) its case.
+here is, ho(ever, no >usti'ication 'or the con'iscation o' accused-appellantPs
passport, airline ticket, lu))a)e, and other personal e''ects. +he pictures taken durin)
that ti$e are also inad$issible, as are the )irdle taken 'ro$ her, and her si)nature
thereon. <ule 1!6, U! o' the <evised <ules o' Cri$inal "rocedure authorizes the
search and seizure only o' the 'ollo(in)*
0ersonal propert' to be seized. Z ; search (arrant $ay be issued 'or the
search and seizure o' personal property*
2a3 Sub>ect o' the o''ense=
2b3 Stolen or e$bezzled and other proceeds or 'ruits o' the o''ense= and
2c3 Ased or intended to be used as the $eans o' co$$ittin) an o''ense.
;ccordin)ly, the above ite$s seized 'ro$ accused-appellant should be returned to
her.
Second. ;ccused-appellant ar)ues that the prosecution 'ailed to 'ully ascertain the
Duantity o' $etha$pheta$ine hydrochloride to >usti'y the i$position o' the penalty
o' reclusion perpetua.
Section !5 o' <.;. #o. 64!/, as a$ended by <.;. #o. 06/9, states*
Section !5 - Application Of 0enalties- ,onfiscation And Forfeiture Of 5he
0roceeds or 3nstrument Of 5he ,rime Q +he penalties 'or o''enses under
Section , 4, 0, J and 9 o' ;rticle :: and Sections 14, 14-;, 1/ and 16 o' ;rticle
::: o' this ;ct, shall be applied i' the dan)erous dru)s involved is in any o' the
'ollo(in) Duantities*
1. 45 )ra$s or $ore o' opiu$=
!. 45 )ra$s or $ore o' $orphine=
3. 200 -/.( o/ .o/e o0 ('4u, o/ .e+',8.*'e+.&ne ',!/o)'8o/&!eI
4. 45 )ra$s or $ore o' heroin=
/. 0/5 )ra$s or $ore o' indian he$p o' $ari>uana=
6. /5 )ra$s o' $ari>uana resin or $ari>uana resin oil=
0. 45 )ra$s or $ore o' cocaine or cocaine hydrochloride= or
J. :n case o' other dan)erous dru)s, the Duantity o' (hich is 'ar beyond
therapeutic reDuire$ents as deter$ined and pro$ul)ated by the Can)erous
Cru)s 8oard, a'ter public consultationBhearin)s conducted 'or the purpose.
6ther(ise, i' the Duantity involved is less than the 'ore)oin) Duantities, the
penalty shall ran)e 'ro$ prision correccional to reclusion perpetuadependin)
upon the Duantity.
Ander this provision, accused-appellant there'ore stands to su''er the penalty
o' reclusion perpetua to death 'or her possession o' /J5.! )ra$s o' shabu.
;ccused-appellant atte$pts to distin)uish bet(een a Duantitative and a Dualitative
e9a$ination o' the substance contained in 79hibits C-1, C-! and C-. She ar)ues that
the e9a$ination conducted by the #8: 'orensic che$ist (as a Dualitative one (hich
$erely yielded positive 'indin)s 'or shabu, but 'ailed to establish its purity= hence, its
e9act Duantity re$ains indeter$inate and unproved.
+his contention is like(ise (ithout $erit.
+he e9pert (itness, @eor)e Ce %ara, stated that the tests conducted (ould have
indicated the presence o' i$purities i' there (ere any. ,e testi'ied*
"<6S. ?7%;SC6 8y $i9in) it t(ice, &r. Witness, i' there are any adulterants or i$purities,
it (ill be discovered by >ust $i9in) itI
W:+#7SS :' so$e dru)s or additives (ere present, it (ill appear in a thin layer
chro$ato)raphic e9a$ination.
"<6S. ?7%;SC6 Cid other dru)s or other additives appear &r. WitnessI
W:+#7SS :n $y thin layer chro$ato)raphic plate, it only appears one spot (hich
rese$bles or the sa$e as the ða$pheta$ine ,ydrochloride sa$ple
. . . .
"<6S. ?7%;SC6 So, &r. Witness, i' there are any adulterants present in the che$icals you
have e9a$ined, in che$ical e9a$ination, (hat color it (ill re)ister, i' anyI
W:+#7SS :n sa$ple, it contained a potassiu$ alu$inu$ sul'ate, it (ill not react (ith the
rea)ent, there'ore it (ill not dissolve. :n $y e9a$ination, all the speci$ens reacted on
the re-a)ents, sir.
"<6S. ?7%;SC6 ;nd (hat is potassiu$ alu$inu$ sul'ate in lay$anPs ter$I
W:+#7SS :t is only a ta(as.
. . . .
C6A<+ :n this particular case, did you 'ind any alu$inu$ sul'ate or ta(as in the
speci$enI
W:+#7SS #one, your ,onor.
. . . .
;++-. ;@66+ : (ill cite an e9a$ple, supposin) ten )ra$s o' ða$pheta$ine
,ydrochloride is $i9ed (ith !55 )ra$s o' ta(as, you (ill sub$it that to Dualitative
e9a$ination, (hat (ill be your 'indin)s, ne)ative or positive, &r. WitnessI
W:+#7SS :t (ill )ive a positive result 'or ða$pheta$ine ,ydrochloride.
;++-. ;@66+ +hat is Dualitative e9a$ination.
W:+#7SS ;nd also positive 'or alu$inu$ sul'ate.
F!1G
; Dualitative deter$ination relates to the identity o' the $aterial, (hereas a
Duantitative analysis reDuires the deter$ination o' the percenta)e co$bination o' the
co$ponents o' a $i9ture. ,ence, a Dualitative identi'ication o' a po(der $ay reveal the
presence o' heroin and Duinine, 'or instance, (hereas a Duantitative analysis $ay
conclude the presence o' 15 percent heroin and 95 percent Duinine.
F!!G
Ce %ara testi'ied that he used a chro$ato)raphy test to deter$ine the contents o'
79hibits C-1, C-! and C-. Chro$ato)raphy is a $eans o' separatin) and tentatively
identi'yin) the co$ponents o' a $i9ture. :t is particularly use'ul 'or analyzin) the
$ultico$ponent speci$ens that are 'reDuently received in a cri$e lab.
For e9a$ple,
illicit dru)s sold on the street $ay be diluted (ith practically any $aterial that is at the
disposal o' the dru) dealer to increase the Duantity o' the product that is $ade available
to prospective custo$ers. ,ence, the task o' identi'yin) an illicit dru) preparation (ould
be an arduous one (ithout the aid o' chro$ato)raphic $ethods to 'irst separate the
$i9ture into its co$ponents.
F!G
+he testi$ony o' Ce %ara established not only that the tests (ere thorou)h, but also
that the scienti'ically correct $ethod o' obtainin) an accurate representative sa$ple had
been obtained.
F!4G
;t any rate, as the Solicitor-@eneral has pointed out, i' accused-
appellant (as not satis'ied (ith the results, it (ould have been a si$ple $atter 'or her to
ask 'or an independent e9a$ination o' the substance by another che$ist. +his she did
not do.
5hird. ;ccused-appellant ar)ues that the prosecution 'ailed to prove the ne)ative
alle)ation in the in'or$ation that she did not have a license to possess or use
$etha$pheta$ine hydrochloride or Wshabu.X
;rt. ::: o' <epublic ;ct #o. 64!/, as a$ended by <epublic ;ct #o. 06/9 provides*
S7C. 16. 0ossession or ;se of +egulated 4rugs. - +he penalty o' reclusion
perpetua to death and a 'ine ran)in) 'ro$ 'ive hundred thousand pesos to ten
$illion pesos shall be i$posed upon any person (ho shall possess or use any
re)ulated dru) (ithout the correspondin) license or prescription, sub>ect to
the provisions o' Section !5 hereo'.
;ccused-appellant clai$s that possession or use o' $etha$pheta$ine
hydrochloride or Wshabu,Xa re)ulated dru), is not unla('ul unless the possessor or user
does not have the reDuired license or prescription. She points out that since the
prosecution 'ailed to present any certi'ication that she is not authorized to possess or
use re)ulated dru)s, it there'ore 'alls short o' the Duantu$ o' proo' needed to sustain a
conviction.
+he contention has no $erit.
+he Duestion raised in this case is si$ilar to that raised in ;nited States %. ,han
5oco.
F!/G
+he accused in that case (as char)ed (ith s$okin) opiu$ (ithout bein) duly
re)istered. ,e de$urred to the in'or$ation on the )round that it 'ailed to alle)e that the
use o' opiu$ had not been prescribed as a $edicine by a duly licensed and practicin)
physician.
+his Court denied the $otion and said*
+he evident interest and purpose o' the statute is to prohibit and to penalize
)enerally the s$okin) o' opiu$ in these :slands. 8ut the le)islator desired to
(ithdra( 'ro$ the operation o' the statute a li$ited class o' s$okers (ho
s$oked under the advice and by prescription o' a licensed and practicin)
physician . . . . ,ence (here one is char)ed (ith a violation o' the )eneral
provisions o' the 6piu$ %a(, it is $ore lo)ical as (ell as $ore practical and
convenient, i' he did in 'act s$oke opiu$ under the advice o' a physician, that
he should set up this 'act by (ay o' de'ense, than that the prosecution should
be called upon to prove that every s$oker, char)ed (ith a violation o' the la(,
does so (ithout such advice or prescription. :ndeed, (hen it is considered
that under the la( any person $ay, in case o' need and at any ti$e, procure
the advice o' a physician to use opiu$ or so$e o' its derivatives, and that in
the nature o' thin)s no public record o' prescriptions o' this kind is or can be
reDuired to be kept, it is $ani'est that it (ould be (holly i$practicable and
absurd to i$pose on the prosecution the burden o' alle)in) and provin) the
'act that one usin) opiu$ does so (ithout the advice o' a physician. +o prove
beyond a reasonable doubt, in a particular case, that one usin) opiu$ does
so (ithout the advice or prescription o' a physician (ould be in $ost cases a
practical i$possibility (ithout the aid o' the de'endant hi$sel', (hile a
de'endant char)ed (ith the ille)al use o' opiu$ should 'ind little di''iculty in
establishin) the 'act that he used it under the advice and on the prescription o'
a physician, i' in 'act he did so.
F!6G
;n accused person so$eti$es o(es a duty to hi$sel' i' not to the State. :' he does
not per'or$ that duty he $ay not al(ays e9pect the State to per'or$ it 'or hi$. :' he
'ails to $eet the obli)ation (hich he o(es to hi$sel', (hen to $eet it is an easy thin)
'or hi$ to do, he has no one but hi$sel' to bla$e.
&oreover, as correctly pointed out by the Solicitor @eneral, there is nothin) in <.;.
#o. 64!/ or the Can)erous Cru)s ;ct, as a$ended, (hich reDuires the prosecution to
present a certi'ication that accused-appellant has no license or per$it to possess
shabu. &ere possession o' the prohibited substance is a cri$e per se and the burden
o' proo' is upon accused-appellant to sho( that she has a license or per$it under the
la( to possess the prohibited dru).
Fourth. %astly, accused-appellant contends that the evidence presented by the
prosecution is not su''icient to support a 'indin) that she is )uilty o' the cri$e char)ed.
+his contention $ust like(ise be re>ected.
Credence (as properly accorded to the testi$onies o' the prosecution (itnesses,
(ho are la( en'orcers. When police o''icers have no $otive to testi'y 'alsely a)ainst the
accused, courts are inclined to uphold this presu$ption. :n this case, no evidence has
been presented to su))est any i$proper $otive on the part o' the police en'orcers in
arrestin) accused-appellant. +his Court accords )reat respect to the 'indin)s o' the trial
court on the $atter o' credibility o' the (itnesses in the absence o' any palpable error or
arbitrariness in its 'indin)s.
F!0G
:t is note(orthy that, aside 'ro$ the denial o' accused-appellant, no other (itness
(as presented in her behal'. ,er denial cannot prevail over the positive testi$onies o'
the prosecution (itnesses.
F!JG
;s has been held, denial as a rule is a (eak 'or$ o'
de'ense, particularly (hen it is not substantiated by clear and
convincin) evidence. +he de'ense o' denial or 'ra$e-up, like alibi, has been invariably
vie(ed by the courts (ith dis'avor 'or it can >ust as easily be concocted and is a
co$$on and standard de'ense ploy in $ost prosecutions 'or violation o' the Can)erous
Cru)s ;ct.
F!9G
+he Court is convinced that the reDuire$ents o' the la( in order that a person $ay
be validly char)ed (ith and convicted o' ille)al possession o' a dan)erous dru) in
violation o' <.;. #o. 64!/, as a$ended, have been co$plied (ith by the prosecution in
this case. +he decision o' the trial court $ust accordin)ly be upheld.
;s re)ards the 'ine i$posed by the trial court, it has been held that courts $ay 'i9
any a$ount (ithin the li$its established by la(.
F5G
Considerin) that 'ive hundred ei)hty
point t(o 2/J5.!3 )ra$s o' shabu (ere con'iscated 'ro$ accused-appellant, the 'ine
i$posed by the trial court $ay properly be reduced to "/5,555.55.
WHERE"ORE, the decision o' the <e)ional +rial Court o' "asay City, 8ranch 115,
'indin) accused-appellant )uilty o' violation o' U16 o' <.;. #o. 64!/, as a$ended, and
i$posin) upon her the penalty o' reclusion perpetua is hereby ;FF:<&7C (ith the
&6C:F:C;+:6# that the 'ine i$posed on accused-appellant is reduced
to "/5,555.55. Costs a)ainst appellant.
+he passport, airline ticket, lu))a)e, )irdle and other personal e''ects not yet
returned to the accused-appellant are hereby ordered returned to her.
SO OR3ERE3.
G.R. No. 93239 M/)' 12, 1991
6EO6LE O" THE 6H$L$66$NES, plainti''-appellee,
vs.
E3$SON SUCRO, accused-appellant.
5he Solicitor General for plaintiff-appellee.
Fidencio S. +az for accused-appellant.
GUT$ERRE1, JR., J.:p
7dison Sucro (as char)ed (ith and convicted o' violation o' Section 4, ;rticle :: o' the Can)erous
Cru)s ;ct, under an :n'or$ation (hich reads*
+hat on or about the !1st day o' &arch, 19J9, in the evenin), in the "oblacion,
&unicipality o' .alibo, "rovince o' ;klan, <epublic o' the "hilippines, and (ithin the
>urisdiction o' this ,onorable Court, the above-na$ed accused, actin) as a pusher or
broker in the business o' sellin), ad$inisterin), delivery, )ivin) a(ay to another
andBor distributin) prohibited dru)s, did then and there (il'ully, unla('ully and
'eloniously and (ithout authority o' la( have in his possession and control nineteen
2193 pieces o' $ari>uana ci)arette sticks and 'our 243 tea ba)s o' dried $ari>uana
leaves (hich (ere con'iscated 'ro$ hi$ by the police authorities o' .alibo, ;klan,
shortly a'ter havin) sold one tea ba) o' dried $ari>uana leaves to a custo$er. 2+ollo,
p. 93
Apon arrai)n$ent, the accused-appellant, assisted by counsel, entered a plea o' Enot )uiltyE to the
o''ense char)ed. +rial ensued and a >ud)$ent o' conviction (as rendered, the pertinent portion o'
(hich reads*
W,7<7F6<7, >ud)$ent is rendered 'indin) the accused 7dison Sucro )uilty o' the
sale o' prohibited dru) under Section 4, ;rticle :: o' the Can)erous Cru) ;ct, as
a$ended, and sentencin) hi$ to su''er the penalty o' li'e i$prison$ent, and pay a
'ine o' "!5,555, and costs. ,e shall be entitled to 'ull credit in the service o' his
sentence (ith the period 'or (hich he has under)one preventive i$prison$ent to the
date o' pro$ul)ation o' this >ud)$ent. ;ll the ite$s o' $ari>uana con'iscated in this
case are declared 'or'eited in 'avor o' the State. 2+ollo, p. 413
Fro$ the 'ore)oin) >ud)$ent o' conviction, accused-appellant interposes this appeal, assi)nin) the
'ollo(in) as errors alle)edly co$$itted by the court a &uo, to (it*
:
+,7 %6W7< C6A<+ 7<<7C :# ;C&:++:#@ ;S 7?:C7#C7 F6< +,7
"<6S7CA+:6# 7S,:8:+S E7E-E7-4E, +7; 8;@S 6F ;%%7@7C &;<:JA;#;, +6
87 +,7 ,O+0;S 4EL3,53J FA<+,7<&6<7, +,;+ +,7 S;&7 W7<7 +;.7#
W:+,6A+ +,7 <7LA:<7C W;<<;#+ 6F S7;<C, ;#C ;<<7S+ S:#C7 +,7
;CCAS7C W;S #6+ :# +,7 ;C+ 6F C6&&:++:#@ ;#- 6FF7#S7 ;+ +,7 +:&7
6F ,:S ;<<7S+.
::
+,7 %6W7< C6A<+ 7<<7C :# F:#C:#@ +,7 ;CCAS7C 7C:S6# SAC<6
@A:%+- 6F +,7 S;%7 6F "<6,:8:+7C C<A@S A#C7< S7C+:6# 4, ;<+:C%7 ::,
6F +,7 C;#@7<6AS C<A@S ;C+ ;#C S7#+7#C:#@ ,:& +6 SAFF7< ;
"7#;%+- 6F %:F7 :&"<:S6#&7#+ ;#C +6 ";- ; F:#7 6F " !5,555.55.
2;ppellant1s 8rie', p. 13
+he antecedent 'acts o' the case as su$$arized by the Solicitor @eneral are as 'ollo(s*
6n &arch !1, 19J9, "at. <oy Ful)encio, a $e$ber o' the :#", .alibo, ;klan, (as
instructed by "B%t. ?icente Seraspi, Jr. 2Station Co$$ander o' the :#" .alibo, ;klan3
to $onitor the activities o' appellant 7dison Sucro, because o' in'or$ation )athered
by Seraspi that Sucro (as sellin) $ari>uana. 2p. 6, +S#, &ay !,19J93.
;s planned, at about /*55 ".&. on said date, "at. Ful)encio "ositioned hi$sel' under
the house o' a certain ;rlie <e)alado at C. Lui$po Street. ;d>acent to the house o'
<e)alado, about ! $eters a(ay, (as a chapel. +herea'ter, "at. Ful)encio sa(
appellant enter the chapel, takin) so$ethin) (hich turned out later to be $ari>uana
'ro$ the co$part$ent o' a cart 'ound inside the chapel, and then return to the street
(here he handed the sa$e to a buyer, ;ldie 8orro$eo. ;'ter a (hile appellant (ent
back to the chapel and a)ain ca$e out (ith $ari>uana (hich he )ave to a )roup o'
persons. 2pp. 6-J, 1/-1J, 3bid3. :t (as at this instance that "at. Ful)encio radioed
"B%t. Seraspi and reported the activity )oin) on. "B%t. Seraspi instructed "at.
Ful)encio to continue $onitorin) develop$ents. ;t about 6*5 ".&., "at. Ful)encio
a)ain called up Seraspi to report that a third buyer later :denti'ied as <onnie
&acabante, (as transactin) (ith appellant. 2pp. 1J-19, 3bid3
;t that point, the tea$ o' "B%t. Seraspi proceeded to the area and (hile the police
o''icers (ere at the -outh ,ostel at &aa)$a St., "at. Ful)encio told "B%t. Seraspi to
intercept &acabante and appellant. "B%t. Seraspi and his tea$ cau)ht up (ith
&acabante at the crossin) o' &abini and &aa)$a Sts. in 'ront o' the ;klan &edical
Center. Apon seein) the police, &acabante thre( so$ethin) to the )round (hich
turned out to be a tea ba) o' $ari>uana. 2pp. 6-J, +S#, June 19, 19J93 When
con'ronted, &acabante readily ad$itted that he bou)ht the sa$e 'ro$ appellant
27dison Sucro3 in 'ront o' the chapel. 2p. 6, +S#, &ay !4, 19J93 +he police tea$ (as
able to overtake and arrest appellant at the corner o' C. Lui$po and ?eterans Sts.
+he police recovered 19 sticks and 4 teaba)s o' $ari>uana 'ro$ the cart inside the
chapel and another teaba) 'ro$ &acabante, +he teaba)s o' $ari>uana (ere sent to
the "C-:#" Cri$e %aboratory Service, at Ca$p Cel)ado, :loilo City 'or analysis. +he
speci$ens 279hibits E@E to E@-1JE, 79hibits E7E to E7-4E3 (ere all 'ound positive o'
$ari>uana. 2pp. 40, +S#, Sept. 4, 19J93E 2;ppellee1s 8rie', pp. -63
;s can be seen 'ro$ the 'acts, the issue hin)es $ainly on (hether or not the arrest (ithout (arrant
o' the accused is la('ul and conseDuently, (hether or not the evidence resultin) 'ro$ such arrest is
ad$issible.
We rule in the a''ir$ative.
+he accused-appellant contends that his arrest (as ille)al, bein) a violation o' his ri)hts )ranted
under Section !, ;rticle ::: o' the 19J0 Constitution. ,e stresses that there (as su''icient ti$e 'or the
police o''icers to apply 'or a search and arrest (arrants considerin) that Ful)encio in'or$ed his
Station Co$$ander o' the activities o' the accused t(o days be'ore &arch !1, 19J9, the date o' his
arrest.
+his contention is (ithout $erit.
Section /, <ule 11 o' the <ules on Cri$inal "rocedure provides 'or the instances (here arrest
(ithout (arrant is considered la('ul. +he rule states*
Arrest without warrant- when lawful. H ; peace o''icer or private person $ay, (ithout
(arrant, arrest a person*
2a3 *hen in his presence- the person to be arrested has committed, is actually
co$$ittin), or is atte$ptin) to co$$it an o''ense=
2b3 *hen an offense has in fact 2ust been committed- and he has personal
(nowledge o' 'acts indicatin) that the person to be arrested has co$$itted it=
27$phasis supplied3
;n o''ense is co$$itted in the presence or (ithin the vie( o' an o''icer, (ithin the $eanin) o' the
rule authorizin) an arrest (ithout a (arrant, (hen the o''icer sees the o''ense, althou)h at a
distance, or hears the disturbances created thereby and proceeds at once to the scene thereo'.
2A.S. v. Fortaleza, 1! "hil. 40! F1959G= and A.S. v. Sa$onte, 16 "hil. /16 F1915G3
+he records sho( that Ful)encio (ent to ;rlie <e)alado1s house at C. Lui$po Street to $onitor the
activities o' the accused (ho (as earlier reported to be sellin) $ari>uana at a chapel t(o 2!3 $eters
a(ay 'ro$ <e)alado1s house.
Ful)encio, (ithin a distance o' t(o $eters sa( Sucro conduct his ne'arious activity. ,e sa( Sucro
talk to so$e persons, )o inside the chapel, and return to the$ and e9chan)e so$e thin)s. +hese,
Sucro did three ti$es durin) the ti$e that he (as bein) $onitored. Ful)encio (ould then relay the
on-)oin) transaction to "B%t. Seraspi.
;nent the second reDuire$ent, the 'act that &acabante, (hen intercepted by the police, (as cau)ht
thro(in) the $ari>uana stick and (hen con'ronted, readily ad$itted that he bou)ht the sa$e 'ro$
accused-appellant clearly indicates that Sucro had >ust sold the $ari>uana stick to &acabante, and
there'ore, had >ust co$$itted an ille)al act o' (hich the police o''icers had personal kno(led)e,
bein) $e$bers o' the tea$ (hich $onitored Sucro1s ne'arious activity.
+he court earlier indicated in the case o' 0eople %. /ati 2@.<. #o. J04!9, ;u)ust !0, 19953 that
police o''icers have personal kno(led)e o' the actual co$$ission o' the cri$e (hen it had earlier
conducted surveillance activities o' the accused. +hus, it stated*
When %uciano and Caraan reached the place (here the alle)ed transaction (ould
take place and (hile positioned at a street co$er, they sa( appellant <e)alado 8ati
and Warner &arDuez by the side o' the street about 'orty to 'i'ty $eters a(ay 'ro$
the$ 2the public o''icers3. +hey sa( &arDuez )ivin) so$ethin) to 8ati, (ho,
therea'ter handed a (rapped ob>ect to &arDuez (ho then inserted the ob>ect inside
the 'ront o' his pants in 'ront o' his abdo$en (hile 8ati, on his part, placed the thin)
)iven to hi$ inside his pocket. 2p. !3
999 999 999
. . . 8oth "atrol$an %uciano and Caraan actuall' witnessed the sa$e and their
testi$onies (ere based on their actual and personal kno(led)e o' the events that
took place leadin) to appellant1s arrest. +hey $ay not have been (ithin hearin)
distance, specially since conversation (ould e9pectedly be carried on in hushed
tones, but they (ere certainly near enou)h to observe the $ove$ents o' the
appellant and the buyer. &oreover, these prosecution (itnesses are all la( en'orcers
and are, there'ore, presu$ed to have re)ularly per'or$ed their duties in the absence
o' proo' to the contrary 2"eople v. 8ati, supra citing "eople v. ;)apito, @.<. #o.
00J6, 6ctober 1!, 19J03
+he accused Duestions the 'ailure o' the police o''icers to secure a (arrant considerin) that
Ful)encio hi$sel' kne( o' Sucro1s activities even prior to the 'or$er1s >oinin) the police 'orce.
Ful)encio reported Sucro1s activities only three days be'ore the incident.
;s the records reveal, Ful)encio and Sucro had kno(n each other since their childhood years and
that a'ter Ful)encio >oined the police 'orce, he told the accused-appellant not to sell dru)s in their
locality. ,ence, it is possible that because o' this 'riendship, Ful)encio hesitated to report his
childhood 'riend and $erely advised hi$ not to en)a)e in such activity. ,o(ever, because o' reliable
in'or$ation )iven by so$e in'or$ants that sellin) (as )oin) on everyday, he (as constrained to
report the $atter to the Station Co$$ander.
6n the other hand, the 'ailure o' the police o''icers to secure a (arrant ste$s 'ro$ the 'act that their
kno(led)e acDuired 'ro$ the surveillance (as insu''icient to 'ul'ill the reDuire$ents 'or the issuance
o' a search (arrant. What is para$ount is that probable cause e9isted. +hus, it has been held in the
case o' 0eople %. Lo )o *ing- et al. 2@.<. #o. JJ510, January !1, 19913*
:n the instant case, it (as 'ir$ly established 'ro$ the 'actual 'indin)s o' the trial court
that the authorities had reasonable )round to believe that appellant (ould atte$pt to
brin) in contraband and transport it (ithin the country. +he belie' (as based on
intelli)ence reports )athered 'ro$ surveillance activities on the suspected syndicate,
o' (hich appellant (as touted to be a $e$ber. ;side 'ro$ this, they (ere also
certain as to the e9pected date and ti$e o' arrival o' the accused 'ro$ China. 8ut
such kno(led)e (as clearly insu''icient to enable the$ to 'ul'ill the reDuire$ents 'or
the issuance o' a search (arrant. Still and all, the i$portant thin) is that there (as
probable cause to conduct the (arrantless search, (hich $ust still be present in
such a case.
;s the Solicitor @eneral has pointed out*
+here are several instances (hen a (arrantless search and seizure can be e''ected
(ithout necessarily bein) preceded by an arrest provided the sa$e is e''ected on the
basis o' probable cause 2e.). stop and search (ithout (arrant at checkpoints3.
8et(een (arrantless searches and seizures at checkpoints and in the case at bar
the latter is $ore reasonable considerin) that unlike in the 'or$er, it (as e''ected on
the basis o' probable cause. Ander the circu$stances 2$onitorin) o' transactions3
there e9isted probable cause 'or the arrestin) o''icers, to arrest appellant (ho (as in
'act sellin) $ari>uana and to seize the contraband.
+hat searches and seizures $ust be supported by a valid (arrant is not an absolute rule 2&anipon,
Jr. v. Sandi)anbayan, 14 SC<; !60 F19J6G3. ;$on) the e9ceptions )ranted by la( is a search
incidental to a la('ul arrest under Sec. 1!, <ule 1!6 o' the <ules on Cri$inal "rocedure, (hich
provides that a person la('ully arrested $ay be searched 'or dan)erous (eapons or anythin) (hich
$ay be used as proo' o' the co$$ission o' an o''ense, (ithout a search (arrant. 2"eople v. Castiller,
@.<. #o. J00J, ;u)ust 6, 19953
+he accused-appellant clai$s that the arrest havin) been done (ithout (arrant, it 'ollo(s that the
evidence obtained there'ro$ is inad$issible.
;s earlier discussed, there is nothin) unla('ul about the arrest considerin) its co$pliance (ith the
reDuire$ents o' a (arrantless arrest. 7r)o, the 'ruits obtained 'ro$ such la('ul arrest are ad$issible
in evidence.
7dison Sucro assails the trial court1s reliance on the state$ent o' &acabante (hose reason 'or
testi'yin) could be $erely to escape prosecution.
We Duote the trial court1s 'indin) as to the testi$ony o' &acabante*
+he non-'ilin) o' a co$plaint a)ainst hi$ 'or possession o' $ari>uana $ay have been
the reason o' 2sic3 his (illin)ness to testi'y in court a)ainst the accused. 8ut this
does not necessarily taint the evidence that proceeds 'ro$ his lips. ;s e9plained by
%t. Seraspi, the best sources o' in'or$ation a)ainst dru) pushers are usually their
custo$ers, especially i' as in this case, there is no other direct evidence o' the sellin)
e9cept the testi$ony o' the buyer. We accept this observation as a realistic appraisal
o' a situation in (hich dru) users are, and should be e$ployed by la( en'orce$ent
authorities to bolster the drive a)ainst pushers (ho are the real 'elons in our society.
We have observed the de$eanor o' the (itness in court, and 'ound hi$ to be
strai)ht'or(ard, unhesitatin), and spontaneous in his declarations, so that (e are
satis'ied as to his intention and disposition to tell the truth 2+ollo, p. 453
+i$e and a)ain it has been held that the 'indin)s o' the trial court are entitled to )reat (ei)ht and
should not be disturbed on appeal unless it is sho(n that the trial court had overlooked certain 'acts
o' (ei)ht and i$portance, it bein) ackno(led)ed. that the court belo(, havin) seen and heard the
(itnesses durin) the trial, is in a better position to evaluate their testi$onies 2"eople v. A$ali, et al.,
@.<. #o. J44/5, February 4, 1991 citing "eople v. ;lvarez, 16 SC<; 04/ F19JJG= "eople v. Corado,
5 SC<; / F1969G= and "eople v. 7spe>o, 6 SC<; 455 F1905G3.
Further$ore, the testi$ony o' &acabante (as corroborated on $aterial points by public o''icers
Ful)encio and Seraspi.
+here is nothin) in the record to su))est that the police o''icers (ere co$pelled by any $otive than
to acco$plish their $ission to capture a dru) pusher in the e9ecution o' the cri$e, the presu$ption
bein) that police o''icers per'or$ their duties re)ularly in the absence o' any evidence to the contrary
2<ule 11, Sec. 2$3, <evised <ules on 7vidence= "eople v. Castiller, supra citing "eople v.
#atipravat, 14/ SC<; 4J F19J6G3.
+he prosecution evidence (as 'urther bolstered by the 'indin)s o' the Forensic Che$ist that the
ite$s seized (ere all positive 'or $ari>uana.
:n contrast to the evidence presented by the prosecution, accused-appellant1s de'ense is alibi (hich
is unavailin) considerin) that he (as positively identi'ied by &acabante to be the person 'ro$ (ho$
he bou)ht $ari>uana.
Sucro alle)es that he could not have co$$itted the cri$e since he (as (ith his uncle and cousin
distributin) handbills 'or his ;untie1s candidacy. +he 'act, ho(ever, re$ains that it does not preclude
the possibility that he (as present in the vicinity as established by his ad$ission that he $oved a lot
and even had the occasion to $eet &acabante on the street.
:t is (ell-settled that $ere denials cannot prevail a)ainst the positive identi'ication o' the appellant as
the seller o' the prohibited substances. 2"eople v. .han, 161 SC<; 456 F19JJG= and "eople v. "aco,
105 SC<; 6J1 F19J9G3
"re$ises considered, this Court is convinced that appellant 7dison Sucro had indeed co$$itted the
o''ense char)ed. +he trial court1s decision $ust be upheld.
W,7<7F6<7, the decision appealed 'ro$ is hereby ;FF:<&7C.
S6 6<C7<7C.
Fernan- ,...- Feliciano- /idin and 4a%ide- .r.- ...- concur.
G.R. No. 95993 Se*+e.4e/ 9, 1995
6EO6LE O" THE 6H$L$66$NES, plainti''-appellee,
vs.
ARMAN3O 3E LARA # GALARO, accused-appellant.
5he Solicitor General for plaintiff-appellee.
5an- Manzano R 6elez for accused-appellant.
<U$ASON, J.:
+his is an appeal 'ro$ the decision o' the <e)ional +rial Court, 8ranch !J, &anila in Cri$inal Case
#o. 949/, 'indin) appellant )uilty beyond reasonable doubt o' violatin) Section 4 o' <epublic ;ct
#o. 64!/, as a$ended by 8.". 8l). 109.
:
+he :n'or$ation char)ed appellant as 'ollo(s*
+hat on or about January 9, 19J0, in the City o' &anila, "hilippines, the said
accused, not bein) authorized by la( to sell, deliver, )ive a(ay to another or
distribute any prohibited dru), did then and there (ill'ully and unla('ully sell or o''er
'or sale t(o 2!3 'oils o' 'lo(erin) tops o' $ari>uana and one 213 plastic ba) o'
'lo(erin) tops o' $ari>uana, (hich are prohibited dru)s 2+ollo, p. 63.
Apon arrai)n$ent, appellant, assisted by his counsel de parte- pleaded not )uilty to the in'or$ation
2<ecords p. /3.
::
6n Cece$ber 1/, 19J6, Capt. <estituto Cablayan o' the #ational Cri$inal :nvesti)ation Service
2#C:S3 o' the Western "olice Cistrict 2W"C3, instructed S)t. 7nriDue Cavid to conduct a surveillance
operation in the vicinity o' @arrido and Ra$ora Streets at Sta. ;na, &anila, a'ter receivin) reports o'
ra$pant dru)-pushin) in that area 2+S#, Cece$ber 14, 19J0, p. !13.
:n co$pliance thereo', a tea$ led by S)t. 7nriDue Cavid, conducted a surveillance operation on
Cece$ber 1/ and 10, and con'ir$ed the reported dru)-pushin) activities in that area by the )roup o'
appellant and a certain <icky alias E"ilayE 2+S#, Cece$ber !, 19J0, pp. /-63. #o arrest (as $ade
because the tea$ (as instructed by their superior to conduct a surveillance operation only 2+S#,
January 11, 19JJ, p. !J3.
6n January J, 19J0, &alaya 279h. EFE3 and "eople1s +oni)ht 279h. E.E3, reported that there (ere
ra$pant, dru)-pushin) activities in the vicinity o' @arrido and Ra$ora Streets in Sta. ;na, &anila,
pro$ptin) @en. ;l'redo %i$, then W"C Superintendent, to repri$and the #C:S o''ice 2+S#,
Cece$ber !, 19J0, p. !3.
6n January 9, because o' the repri$and )iven by @en. %i$, Capt. Cablayan instructed S)t. Cavid to
plan a buy-bust operation and to 'or$ a
si9-$an tea$ (ith "'c. &artin 6rol'o, Jr. as the poseur-buyer 2+S#, Cece$ber !, 19J0, p. 6,
January 11, 19JJ, p. 63.
;t around 4*4/ ".&. o' the sa$e day, the tea$, to)ether (ith their con'idential in'or$ant, (ent to
@arrido Street. Apon arrivin) threat, they strate)ically positioned the$selves. "'c. 6rol'o, Jr. and the
con'idential in'or$ant proceeded to the house o' appellant located at #o. !!60 @arrido Street, (here
they sa( hi$ standin) outside. +he con'idential in'or$ant introduced "'c. 6rol'o, Jr. to appellant as
an interested buyer o' $ari>uana. ;ppellant asked "'c. 6rol'o, Jr. E:lan an) bibilhin ninyoIE 2,o(
$uch (ill you buyI3. "'c. 6rol'o, Jr., replied* E+(o 'oilsE handin) at the sa$e ti$e the $arked
t(enty-peso bill 279h. E7E3 to appellant. +he latter, a'ter placin) the $oney in the ri)ht pocket o' his
pants, (ent inside his house 2+S#, January 11, 19JJ, pp. 0-93. &inutes later, appellant ca$e back
and handed t(o 'oils 279hs. EC-1-aE and EC-1-bE3 (rapped in onion paper 2+S#, January 11, 19JJ, p.
J3. :t (as a'ter he handed the t(o 'oils to "'c. 6rol'o Jr., that he sensed the presence o' the police
operatives. ,e then tried to retrieve the t(o 'oils but "'c. 6rol'o, Jr. prevented hi$ 'ro$ doin) so.
Curin) the scu''le, one 'oil (as torn. ;ppellant then ran inside his house (ith "'c. 6rol'o, Jr. in
pursuit. +he latter (as able to subdue appellant. S)t. Cavid con'ronted appellant, (ho ad$itted that
he kept prohibited dru)s in his house. ;ppellant sho(ed the arrestin) o''icers a blue plastic ba) (ith
(hite linin) containin) prohibited dru)s. ; receipt o' the articles seized 279h. EFE3 (as $ade by "'c.
6rol'o, Jr. 2+S#, January 11, 19JJ, pp. 1!-1/3.
+herea'ter, the tea$, to)ether (ith appellant, proceeded to the W"C headDuarters 'or investi)ation.
+hereat, S)t. Cavid ordered "'c. 6rol'o, Jr. to co$$ence the investi)ation o' appellant 2+S#,
January 11, 19JJ, pp. 19-!13.
Curin) the investi)ation, appellant (as apprised o' his constitutional ri)hts to re$ain silent and to
have the assistance o' counsel. When appellant (as asked to )ive a (ritten state$ent, he re'used to
do so pendin) arrival o' his la(yer 2+S#, January 11, 19JJ, p. !3.
+he prohibited dru)s seized 'ro$ appellant (ere brou)ht to the #8: 'or che$ical analysis. ; report
and certi'ication o' &s. ;ida "ascual, Forensic Che$ist o' the #8: 279hs. ECE and ECE3, sho( the
dru)s to be positive 'or $ari>uana.
;ppellant denied havin) sold $ari>uana to anyone and clai$ed that the arrestin) o''icers $erely
planted the $ari>uana on his person. ,e testi'ied that on January 9, 19J0, he arrived ho$e 'ro$
(ork as a security )uard o' the ?er)ara 8rothers ;)ency at around *55 ".&. ;'ter chan)in) his
clothes, he (ent out to 'etch his son, (ho (as le't in the care o' a nei)hbor. Apon returnin) to his
house (ith his son, he (as arrested by the police. +he police proceeded to search his house,
(ithout any search (arrant sho(n to hi$. ;'ter the search, he and his (i'e (ere brou)ht to the W"C
headDuarters. ,e clai$ed that inspite o' his protestation that he (ould like to (ait 'or his la(yer
be'ore )ivin) any state$ent, the police continued their interro)ation.
;ppellant denied that the t(enty-peso bill (as )iven to hi$ by the poseur-buyer. ,e clai$ed that he
(as $erely 'orced to si)n his na$e on the photocopy o' the t(enty-peso bill 279h. EFE3 and that the
'irst ti$e he sa( the blue plastic ba) containin) prohibited dru)s (as (hen he (as at the police
station 2+S#, June 14, 19JJ, pp. 1-113.
+o corroborate his story, appellant presented his youn)er brother, @erry de %ara.
6n 6ctober !, 19J9, the trial court rendered its decision, disposin) as 'ollo(s*
W,7<7F6<7, >ud)$ent is hereby rendered 'indin) the accused )uilty beyond
reasonable doubt o' violation o' Sec 4, ;rt :: o' <.;. 64!/ as a$ended as char)ed in
the :n'or$ation= and this Court hereby sentences the accused to su''er a penalty o'
li'e i$prison$ent and to pay a 'ine o' "!5,555.55 2+ollo- p. !43.
,ence, this appeal.
:::
:n his appeal, appellant Duestions the le)ality o' his arrest and the seizure o' prohibited dru)s 'ound
inside his house. Further$ore, he clai$s that he (as not assisted by counsel durin) his custodial
interro)ation 2+ollo, pp. //-/03.
;s to the le)ality o' appellant1s arrest, (e 'ind that the police operatives acted (ithin the bounds o'
la(.
Section /, <ule 11 o' the 19J/ <ules on Cri$inal "rocedures dealin) (ith (arrantless arrests
provides*
;rrest (ithout (arrant= (hen la('ul. H ; peace o''icer or a private person $ay,
(ithout a (arrant, arrest a person=
a3 When, in his presence, the person to be arrested has co$$itted, is actually
co$$ittin), or is atte$ptin) to co$$it an o''ense=
b3 When an o''ense has in 'act >ust been co$$itted and he has personal kno(led)e
o' 'acts indicatin) that the person to be arrested has co$$itted it=
999 999 999
:n the case at bench, appellant (as cau)ht red-handed in deliverin) t(o tin 'oils o' $ari>uana to "at.
6rol'o, Jr., the poseur-buyer. ;pplyin) the a'ore$entioned provision o' la(, appellant1s arrest (as
la('ully e''ected (ithout need o' a (arrant o' arrest. E,avin) cau)ht the appellant in flagrante as a
result o' the buy-bust operation, the police$en (ere not only authorized but (ere also under
obli)ation to apprehend the dru) pusher even (ithout a (arrant o' arrestE 2"eople v. .alubiran, 196
SC<; 644 F1991G= 0eople %s. 4e Los Santos, !55 SC<; 41 F1991G3.
;ppellant, ho(ever, asseverates that his arrest (as precipitated only by ne(spaper publications
about the ra$pant sale o' dru)s alon) @arrido and Ra$ora Streets, Sta. ;na, &anila 2+ollo, p. /3. :'
appellant i$plies that the police $erely sta)e-$ana)ed his arrest in order to sho( that they (ere not
re$iss in their duties, then appellant is (ron). ; surveillance on the ille)al activities o' the appellant
(as already conducted by the police as early as Cece$ber 1/ and 10, 19J6. +he ne(spaper reports
concernin) the ille)al dru) activities ca$e out only on January J and 14, 19J0, lon) a'ter the police
kne( o' the said ille)al activities. ;ppellant1s eventual arrest on January 9, 19J0 (as the result o' the
surveillance conducted and the buy-bust operation.
+he evidence sho(s that appellant ran inside his house upon sensin) the presence o' the police
operatives. +he testi$ony o' "at. 6rol'o, Jr., the poseur-buyer, is as 'ollo(s*
F:SC;%*
L* ;'ter placin) the "!5 bill in his ri)ht pocket, (hat did he doI
;* ,e (ent to his house and $inutes later, he ca$e back, sir.
L* When he ca$e back (hat happenedI
;* ,e handed to $e t(o tin 'oils containin) suspected $ari>uana
leaves (rapped in onion paper.
L* ;nd (hat happened ne9t (hen he returned (ith those ite$sI
;* ;'ter he handed to $e t(o 'oils, he sensed the presence o' the
operatives and he tried to retrieve the t(o 'oils, sir, and : prevented
hi$ and durin) the scu''le one piece o' 'oil (as broken, he tried to run
inside the house, so : subdued hi$ i$$ediately and apprehended
hi$ (hile he (as inside the house.
L* ;'ter he (as subdued by your )roup, (hat happenedI
;* S)t. Cavid con'ronted hi$ re)ardin) this case and he voluntarily
ad$itted that he (as still keepin) prohibited dru)s inside his houseI
L* What did the )roup do a'ter he voluntarily ad$itted that he (as
keepin) prohibited dru)s inside his houseI
;* ,e pointed inside his house 2sic3 one plastic ba) colored blue (ith
(hite linin) containin) prohibited dru)E 2+S#, January 11, 19JJ, pp.
1!-143.
+he police$en1s entry into the house o' appellant (ithout a search (arrant (as in hot-pursuit o' a
person cau)ht co$$ittin) an o''ense in flagrante. +he arrest that 'ollo(ed the hot-pursuit (as valid
219J/ <ules on Cri$inal "rocedure, <ule 11, Section /FaG3.
We also 'ind as valid the seizure o' the plastic ba) o' prohibited dru)s 'ound inside appellant1s
house.
+he seizure o' the plastic ba) containin) prohibited dru)s (as the result o' appellant1s arrest inside
his house. ; conte$poraneous search $ay be conducted upon the person o' the arrestee and the
i$$ediate vicinity (here the arrest (as $ade 2"eople v. Castiller, 1JJ SC<; 06 F1995G3.
We 'ind to be $eritorious appellant1s clai$ that he (as not assisted by counsel durin) the custodial
investi)ation, speci'ically (hen he (as 'orced to si)n the photocopy o' the $arked t(enty-peso bill
279h. E7E3, <eceipt o' "roperty Seized 279h. EFE3, and the 8ookin) and :n'or$ation Sheet 279h. E,E3.
+he said docu$ents are inad$issible in evidence 'or the reason that there (as no sho(in) that
appellant (as then assisted by counsel nor his (aiver thereto put into (ritin) 2Constitution, ;rt. :::,
Sec. F!G3.
8e that as it $ay, the re>ection o' said evidence (ould not a''ect the conviction o' appellant in vie( o'
the abundance o' other evidence establishin) his )uilt. +he rulin) in 0eople %. Mau'ao, !50 SC<;
0! 2199!3 isapropos*
:t bears e$phasis, ho(ever, that the accused appellant1s con'or$ity to the
Duestioned docu$ents has not been a 'actor at all in his conviction. For even i' these
docu$ents (ere disre)arded, still the accused-appellant1s )uilt has been adeDuately
established by other evidence o' record. +he trial court1s verdict (as based on the
evidence o' the prosecution not on his si)natures on the Duestioned docu$ents.
;ccused-appellant1s denial si$ply can not prevail over the detailed and unshaken
testi$onies o' the apprehendin) o''icers (ho cau)ht hi$ red-handed sellin)
$ari>uana and (ho have not sho(n to have any ulterior $otive to testi'y 'alsely
a)ainst accused-appellant.
:?
+he trial court sentenced appellant to su''er the penalty o' li'e i$prison$ent and to pay a 'ine o'
"!5,555.55 pursuant to Section 4, ;rticle :: o' the Can)erous Cru)s ;ct o' 190!, as a$ended by
8.". 8l). 109. ,o(ever, said la( (as 'urther a$ended by <.;. #o. 06/9.
Ander Section 10 o' <.;. #o. 06/9, the penalty to be i$posed 'or sellin), ad$inisterin), deliverin) or
distributin) less than 0/5 )ra$s o' $ari>uana, shall ran)e 'ro$ 7prision correccional to reclusion
perpetua dependin) upon the Duantity.E
Ander Section 4 o' <.;. #o. 06/9, the penalty 'or sellin), dispensin), deliverin), transportin) or
distributin) $ari>uana in e9cess o' 0/5 )ra$s or $ore shall be Ereclusion perpetua to death and a
'ine ran)in) 'ro$ Five ,undred +housand "esos to +en &illion "esos.E
We noticed that the penalty o' reclusion perpetua (as i$posed by <.;. #o. 06/9 as the $a9i$u$
penalty (hen the Duantity o' the $ari>uana involved in the o''ense is less than 0/5 )ra$s and at the
sa$e ti$e as the $ini$u$ penalty (hen the Duantity o' $ari>uana involved is 0/5 )ra$s or $ore. :t
is the duty o' the Court to har$onize con'lictin) provisions to )ive e''ect to the (hole la( 2<u'ino
%opez and Sons v. Court o' ;ppeals, 155 "hil. J/5 F19/0G3. Further$ore, one o' this Court1s
pri$ordial responsibilities is to )ive a statute its sensible construction. +his is to e''ectuate the
intention o' the le)islature so as to avoid an absurd conclusion (ith re)ard to its $eanin) 2%a$b v.
"hipps, !! "hil. 4/6 F191!G3. +here'ore, (hen the Duantity involved is less than 0/5 )ra$s, Section
10 o' <.;. #o. 06/9 should be read correctly to provide a penalty ran)in) 'ro$ prision
correccional to reclusion temporal only.
+he provision o' ;rticle !! o' the <evised "enal Code, (hich states that Epenal la(s shall have a
retroactive e''ect inso'ar as they 'avor the person )uilty o' a 'elony,E 'inds $eanin) in this case.
;ppellant is entitled to bene'it 'ro$ the reduction o' the penalty introduced by <.;. #o. 06/9.
:n order to deter$ine the penalty to be i$posed on appellant, (e 'irst divide the a$ount o' 0/5
)ra$s into three to correspond to the three applicable penalties, na$ely, prision correccional, prision
ma'or and reclusion temporal.
:' the $ari>uana involved is 'ro$ /55 to 049 )ra$s, the penalty to be i$posed is reclusion temporal.
:' the $ari>uana involved is 'ro$ !/5 to 499 )ra$s, the penalty to be i$posed is prision ma'or and i'
the (ei)ht o' the $ari>uana involved is belo( !/5 )ra$s, the penalty to be i$posed is prision
correccional.
Since there is no evidence as to the (ei)ht o' the t(o 'oils and one plastic ba) o' 'lo(erin) tops o'
$ari>uana seized 'ro$ appellant, (e resolve the doubt in 'avor o' appellant and conclude that the
Duantity involved (as* 2i3 belo( 0/5 )ra$s= and 2ii3 not less than !/5 but not $ore than 499 )ra$s.
,ence, the $a9i$u$ penalty that can be i$posed on appellant is prision ma'or. ;pplyin) the
:ndeter$inate Sentence %a( to appellant, (ho (as convicted under a special la( 2"eople vs.
&acantando, 159 SC<; / F19J1G3, and as such la( (as interpreted in 0eople %. Simon- @.<. #o.
95!J, July !9, 1994, the $ini$u$ penalty that can be i$posed on appellant should be (ithin the
ran)e o' prision correccional.
W,7<7F6<7, the Cecision appealed 'ro$ is ;FF:<&7C (ith the $odi'ication that appellant shall
su''er an indeter$inate penalty o' F6A< 243 years and +W6 2!3 days o' prision correccional, as
$ini$u$, to 7:@,+ 2J3 years and 6#7 213 day o' prision ma'or, as $a9i$u$.
S6 6<C7<7C.
4a%ide- .r.- /ellosillo and Hapunan- ...- concur.
,ruz- ..- is on lea%e.
G.R. No. 99257-52. M/)' 10, 1993.
"76"%7 6F +,7 ",:%:"":#7S, plainti''-appellee, vs. @;8<:7% @7<7#+7 y 8A%%6, accused-
appellant.
+he Solicitor @eneral 'or plainti''-appellee.
"ublic ;ttorney1s 6''ice 'or accused-appellant.
S-%%;8AS
1. <7&7C:;% %;W= C<:&:#;% "<6C7CA<7= ;<<7S+ W:+,6A+ W;<<;#+= %;WFA% W,7#
;<<7S+:#@ 6FF:C7< ,;S "7<S6#;% .#6W%7C@7 +,;+ +,7 "7<S6# +6 87 ;<<7S+7C
,;S C6&&:++7C +,7 C<:&7= C;S7 ;+ 8;<. H +he police$en arrested @erente only so$e
three 23 hours a'ter @erente and his co$panions had killed 8lace. +hey sa( 8lace dead in the
hospital and (hen they inspected the scene o' the cri$e, they 'ound the instru$ents o' death* a
piece o' (ood and a concrete hollo( block (hich the killers had used to blud)eon hi$ to death. +he
eye-(itness, 7dna 7d(ina <eyes, reported the happenin) to the police$en and pinpointed her
nei)hbor, @erente, as one o' the killers. Ander those circu$stances, since the police$en had
personal kno(led)e o' the violent death o' 8lace and o' 'acts indicatin) that @erente and t(o others
had killed hi$, they could la('ully arrest @erente (ithout a (arrant. :' they had postponed his arrest
until they could obtain a (arrant, he (ould have 'led the la( as his t(o co$panions did.
!. :C.= :C.= S7;<C, ;#C S7:RA<7= ?;%:C 7?7# W:+,6A+ ; W;<<;#+ W,7# &;C7 ;S ;#
:#C:C7#+ +6 %;WFA% ;<<7S+= <;+:6#;%7. H +he search conducted on @erente1s person (as
like(ise la('ul because it (as $ade as an incident to a valid arrest. +his is in accordance (ith
Section 1!, <ule 1!6 o' the <evised <ules o' Court (hich provides* ESection 1!. Search incident to
la('ul arrest. H ; person la('ully arrested $ay be searched 'or dan)erous (eapons or anythin)
(hich $ay be used as proo' o' the co$$ission o' an o''ense, (ithout a search (arrant.E +he 'risk
and search o' appellant1s person upon his arrest (as a per$issible precautionary $easure o'
arrestin) o''icers to protect the$selves, 'or the person (ho is about to be arrested $ay be ar$ed
and $i)ht attack the$ unless he is 'irst disar$ed. :n ;da$s vs. Willia$s, 40 A.S. 14, cited in
Justice :sa)ani ;. Cruz1s Constitutional %a(, 1991 7dition, p. 1/5, it (as ruled that Ethe individual
bein) arrested $ay be 'risked 'or concealed (eapons that $ay be used a)ainst the arrestin) o''icer
and all unla('ul articles 'ound his person, or (ithin his i$$ediate control $ay be seized.E
. C<:&:#;% %;W= C6#S":<;C-= %:;8:%:+- 6F C6#S":<;+6<S= <A%7= C;S7 ;+ 8;<. H
+here is no $erit in appellant1s alle)ation that the trial court erred in convictin) hi$ o' havin)
conspired and cooperated (ith Fredo and +otoy 7chi)oren to kill 8lace despite the testi$ony o' Cr.
?alentin 8ernales that the 'racture on the back o' the victi$1s skull could have been in'licted by one
person only. (hat Cr. 8ernales stated (as a $ere possibility that only one person dropped the
concrete hollo( block on the head o' the victi$, s$ashin) it. +hat circu$stance, even i' true, does
not absolve the other t(o co-conspirators in the $urder o' 8lace 'or (hen there is a conspiracy to
co$$it a cri$e, the act o' one conspirator is the act o' all. +he conspiracy (as proven by the
eye(itness-testi$ony o' 7dna 7d(ina <eyes, that she overheard the appellant and his co$panions
conspire to kill 8lace, that actin) in concert, they attacked their victi$ (ith a piece o' (ood and a
hollo( block and caused his death. EWhen there is no evidence indicatin) that the principal (itness
'or the prosecution (as $oved by i$proper $otive, the presu$ption is that he (as not so $oved
and his testi$ony is entitled to 'ull 'aith and creditE 2"eople vs. 8elibet, 199 SC<; /J0, /JJ3. ,ence,
the trial court did not err in )ivin) 'ull credit to 7dna <eyes1 testi$ony.
4. :C.= C:?:% :#C7&#:+- F6< C7;+,= :#C<7;S7C +6 "/5,555.55. H +he Solicitor @eneral
correctly pointed out in the appellee1s brie' that the a(ard o' "5,555.55 as civil inde$nity 'or the
death o' Clarito 8lace should be increased to "/5,555.55 in accordance (ith our rulin) in "eople vs.
Sison, 1J9 SC<; 64.
C 7 C : S : 6 #
@<:[6-;LA:#6, J p*
+his is an appeal 'ro$ the decision o' the <e)ional +rial Court o' ?alenzuela, &etro &anila, 8ranch
10!, (hich 'ound the appellant )uilty o' ?iolation o' Section J o' <epublic ;ct 64!/ 2Can)erous
Cru)s ;ct o' 190!3 and sentenced hi$ to su''er the penalty o' i$prison$ent 'or a ter$ o' t(elve 21!3
years and one 213 day, as $ini$u$, to t(enty 2!53 years, as $a9i$u$= and also 'ound hi$ )uilty o'
&urder 'or (hich cri$e he (as sentenced to su''er the penalty o' reclusion perpetua. +he dispositive
portion o' the appealed decision reads*
EW,7<7F6<7, in vie( o' the 'ore)oin) the Court 'inds the accused @abriel @erente in Cri$inal
Case #o. 15!//-?-95 )uilty beyond reasonable doubt o' ?iolation o' Section J o' <.;. 64!/ and
hereby sentences hi$ to su''er the penalty o' i$prison$ent o' t(elve years and one day as
$ini$u$ to t(enty years as $a9i$u$, and a 'ine o' t(elve thousand, (ithout subsidiary
i$prison$ent in case o' insolvency, and to pay the costs.
E:n Cri$inal Case #o. 15!/6-?-95, the Court 'inds the accused @abriel @erente )uilty beyond
reasonable doubt o' the cri$e o' &urder, and there by 2sic3 no a))ravatin) circu$stances nor
$iti)atin) circu$stances, is hereby sentenced to su''er the penalty o' reclusion perpetua= to
inde$ni'y the heirs o' the victi$ in the su$ o' "5,555.55, and in the a$ount o' "10,659.55 as
'uneral e9penses, (ithout subsidiary i$prison$ent in case o' insolvency, and to pay the costs. +he
accused @abriel @erente shall be credited (ith the 'ull ter$ o' his preventive i$prison$ent.E 2p. !/,
<ollo.3
;ppellant @abriel @erente y 8ullo (as char)ed (ith ?iolation o' Section J, ;rt. :: o' <.;. 64!/, (hich
(as docketed as Cri$inal Case #o. 15!//-?-95 o' the <e)ional +rial Court o' ?alenzuela, &etro
&anila. +he :n'or$ation reads*
E+hat on or about the 5th day o' ;pril, 1995, in the $unicipality o' ?alenzuela, &etro &anila,
"hilippines, and (ithin the >urisdiction o' this ,onorable Court, the above-na$ed accused, (ithout
>usti'ication, did then and there (il'ully, unla('ully and 'eloniously have in his possession and control
dried 'lo(erin) tops (rapped in 'oil (ith $arkin)s and place in a transparent plastic ba) (hich are
considered prohibited dru)s.E 2p. !, <ollo.3
+he sa$e accused, to)ether (ith +otoy and Fredo 7chi)oren (ho are both at lar)e, (as char)ed
(ith &urder in Cri$inal Case #o. 15!/6-?-95 in an in'or$ation o' the sa$e date and si)ned by the
sa$e ;ssistant "rovincial "rosecutor, as 'ollo(s*
E+hat on or about the 5th day o' ;pril, 1995, in the $unicipality o' ?alenzuela, &etro &anila,
"hilippines, and (ithin the >urisdiction o' this ,onorable Court, the above-na$ed accused to)ether
(ith t(o 2!3 others (ho are still at lar)e and a)ainst (ho$ the preli$inary investi)ation has not yet
been ter$inated by the 6''ice o' the "rovincial "rosecutor o' 8ulacan, conspirin), con'ederatin)
to)ether and $utually helpin) one another, ar$ed (ith a piece o' (ood and hallo( 2sic3 block and
(ith intent to kill one Clarito 8. 8lace, did then and there (il'ully, unla('ully and 'eloniously, (ith
evident pre$editation and treachery, attack, assault and hit (ith the said piece o' (ood and hollo(
block the said Clarito 8. 8lace, hittin) the latter on the di''erent parts o' his body, thereby in'lictin)
serious physical in>uries (hich directly caused the death o' the said victi$.E 2p. , <ollo.3
7dna 7d(ina <eyes testi'ied that at about 0*55 a.$. o' ;pril 5, 1995, appellant @abriel @erente,
to)ether (ith Fredo 7chi)oren and +otoy 7chi)oren, started drinkin) liDuor and s$okin) $ari>uana
in the house o' the appellant (hich is about si9 263 $eters a(ay 'ro$ the house o' the prosecution
(itness (ho (as in her house on that day. She overheard the three $en talkin) about their intention
to kill Clarito 8lace. She testi'ied that she heard Fredo 7chi)oren sayin), E@abriel, papatayin natin si
Clarito 8lace,E and +otoy 7chi)oren alle)edly seconded Fredo1s su))estion sayin)* E"apatayin natin
1yan $a$aya.E ;ppellant alle)edly a)reed* ESi)ue, papatayin natin $a$aya.E 2pp. -4, tsn, ;u)ust
!4, 1995.3
Fredo and +otoy 7chi)oren and @erente carried out their plan to kill Clarito 8lace at about !*55 p.$.
o' the sa$e day. +he prosecution (itness, 7dna 7d(ina <eyes, testi'ied that she (itnessed the
killin). Fredo 7chi)oren struck the 'irst blo( a)ainst Clarito 8lace, 'ollo(ed by +otoy 7chi)oren and
@abriel @erente (ho hit hi$ t(ice (ith a piece o' (ood in the head and (hen he 'ell, +otoy
7chi)oren dropped a hollo( block on the victi$1s head. +herea'ter, the three $en dra))ed 8lace to
a place behind the house o' @erente.
;t about 4*55 p.$. o' the sa$e day, "atrol$an Jai$e Arrutia o' the ?alenzuela "olice Station
received a report 'ro$ the "alo "olice Cetach$ent about a $aulin) incident. ,e (ent to the
?alenzuela Cistrict ,ospital (here the victi$ (as brou)ht. ,e (as in'or$ed by the hospital o''icials
that the victi$ died on arrival. +he cause o' death (as $assive 'racture o' the skull caused by a hard
and heavy ob>ect. <i)ht a(ay, "atrol$an Arrutia, to)ether (ith "olice Corporal <o$eo %i$a and
"atrol$an ;le9 A$ali, proceeded to "aseo de 8las (here the $aulin) incident took place. +here
they 'ound a piece o' (ood (ith blood stains, a hollo( block and t(o roaches o' $ari>uana. +hey
(ere in'or$ed by the prosecution (itness, 7dna 7d(ina <eyes, that she sa( the killin) and she
pointed to @abriel @erente as one o' the three $en (ho killed Clarito.
+he police$en proceeded to the house o' the appellant (ho (as then sleepin). +hey told hi$ to
co$e out o' the house and they introduced the$selves as police$en. "atrol$an Arrutia 'risked
appellant and 'ound a coin purse in his pocket (hich contained dried leaves (rapped in ci)arette
'oil. +he dried leaves (ere sent to the #ational 8ureau o' :nvesti)ation 'or e9a$ination. +he Forensic
Che$ist 'ound the$ to be $ari>uana.
6nly the appellant, @abriel @erente, (as apprehended by the police. +he other suspects, Fredo and
+otoy 7chi)oren, are still at lar)e.
6n &ay !, 1995, t(o separate in'or$ations (ere 'iled by ;ssistant "rovincial "rosecutor 8en>a$in
Carai) a)ainst hi$ 'or ?iolation o' Section J, ;rt. ::, o' <.;. 64!/, and 'or &urder.
When arrai)ned on &ay 16, 1995, the appellant pleaded not )uilty to both char)es. ; >oint trial o' the
t(o cases (as held. 6n Septe$ber !4, 1995, the trial court rendered a decision convictin) hi$ o'
?iolation o' Section J o' <.;. 64!/ and o' &urder.
:n this appeal o' the appellant, the 'ollo(in) errors are ascribed to the trial court*
1. the court a Duo )ravely erred in ad$ittin) the $ari>uana leaves adduced in evidence by the
prosecution= and
!. the court a Duo )ravely erred in convictin) the accused-appellant o' the cri$es char)ed despite
the absence o' evidence reDuired to prove his )uilt beyond reasonable doubt.
+he appellant contends that the trial court erred in ad$ittin) the $ari>uana leaves as evidence in
violation o' his constitutional ri)ht not to be sub>ected to ille)al search and seizure, 'or the dried
$ari>uana leaves (ere seized 'ro$ hi$ in the course o' a (arrantless arrest by the police o''icers.
We do not a)ree.
+he search o' appellant1s person and the seizure o' the $ari>uana leaves in his possession (ere
valid because they (ere incident to a la('ul (arrantless arrest.
"ara)raphs 2a3 and 2b3, Section /, <ule 11 o' the <evised <ules o' Court provide*
1S7C+:6# /. ;rrest (ithout (arrant= (hen la('ul. H ; peace o''icer or a private person $ay, (ithout
a (arrant, arrest a person*
E2a3 When, in his presence, the person to be arrested has co$$itted, is actually co$$ittin), or is
atte$ptin) to co$$it an o''ense=E
E2b3 When an o''ense has in 'act >ust been co$$itted, and he has personal kno(led)e o' 'acts
indicatin) that the person to be arrested has co$$itted it= . . .1
+he police$en arrested @erente only so$e three 23 hours a'ter @erente and his co$panions had
killed 8lace. +hey sa( 8lace dead in the hospital and (hen they inspected the scene o' the cri$e,
they 'ound the instru$ents o' death* a piece o' (ood and a concrete hollo( block (hich the killers
had used to blud)eon hi$ to death. +he eye-(itness, 7dna 7d(ina <eyes, reported the happenin)
to the police$en and pinpointed her nei)hbor, @erente, as one o' the killers. Ander those
circu$stances, since the police$en had personal kno(led)e o' the violent death o' 8lace and o'
'acts indicatin) that @erente and t(o others had killed hi$, they could la('ully arrest @erente (ithout
a (arrant. :' they had postponed his arrest until they could obtain a (arrant, he (ould have 'led the
la( as his t(o co$panions did.
:n A$il vs. <a$os, 1J0 SC<; 11, the arrest o' the accused (ithout a (arrant (as e''ected one 213
day a'ter he had shot to death t(o Capco$ soldiers. +he arrest (as held la('ul by this Court upon
the rationale stated by us in "eople vs. &alasu)ui, 6 "hil. !!1, !!J, thus*
E+o hold that no cri$inal can, in any case, be arrested and searched 'or the evidence and tokens o'
his cri$e (ithout a (arrant, (ould be to leave society, to a lar)e e9tent, at the $ercy o' the
shre(dest, the $ost e9pert, and the $ost depraved o' cri$inals, 'acilitatin) their escape in $any
instances.E
+he search conducted on @erente1s person (as like(ise la('ul because it (as $ade as an incident
to a valid arrest. +his is in accordance (ith Section 1!, <ule 1!6 o' the <evised <ules o' Court (hich
provides*
ES7C+:6# 1!. Search incident to la('ul arrest. H ; person la('ully arrested $ay be searched 'or
dan)erous (eapons or anythin) (hich $ay be used as proo' o' the co$$ission o' an o''ense,
(ithout a search (arrant.E
+he 'risk and search o' appellant1s person upon his arrest (as a per$issible precautionary $easure
o' arrestin) o''icers to protect the$selves, 'or the person (ho is about to be arrested $ay be ar$ed
and $i)ht attack the$ unless he is 'irst disar$ed. :n ;da$s vs. Willia$s, 40 A.S. 14, cited in
Justice :sa)ani ;. Cruz1s Constitutional %a(, 1991 7dition, p. 1/5, it (as ruled that Ethe individual
bein) arrested $ay be 'risked 'or concealed (eapons that $ay be used a)ainst the arrestin) o''icer
and all unla('ul articles 'ound in his person, or (ithin his i$$ediate control $ay be seized.E
+here is no $erit in appellant1s alle)ation that the trial court erred in convictin) hi$ o' havin)
conspired and cooperated (ith Fredo and +otoy 7chi)oren to kill 8lace despite the testi$ony o' Cr.
?alentin 8ernales that the 'racture on the back o' the victi$1s skull could have been in'licted by one
person only.
What Cr. 8ernales stated (as a $ere possibility that only one person dropped the concrete hollo(
block on the head o' the victi$, s$ashin) it. +hat circu$stance, even i' true, does not absolve the
other t(o co-conspirators in the $urder o' 8lace 'or (hen there is a conspiracy to co$$it a cri$e,
the act o' one conspirator is the act o' all. +he conspiracy (as proven by the eye(itness-testi$ony
o' 7dna 7d(ina <eyes, that she overheard the appellant and his co$panions conspire to kill 8lace,
that actin) in concert, they attacked their victi$ (ith a piece o' (ood and a hollo( block and caused
his death. EWhen there is no evidence indicatin) that the principal (itness 'or the prosecution (as
$oved by i$proper $otive, the presu$ption is that he (as not so $oved and his testi$ony is
entitled to 'ull 'aith and creditE 2"eople vs. 8elibet, 199 SC<; /J0, /JJ3. ,ence, the trial court did not
err in )ivin) 'ull credit to 7dna <eyes1 testi$ony.
;ppellant1s 'ailure to escape 2because he (as very drunk3 is no indiciu$ o' his innocence.
+he Solicitor @eneral correctly pointed out in the appellee1s brie' that the a(ard o' "5,555.55 as
civil inde$nity 'or the death o' Clarito 8lace should be increased to "/5,555.55 in accordance (ith
our rulin) in "eople vs. Sison, 1J9 SC<; 64.
W,7<7F6<7, the appealed decision is hereby ;FF:<&7C, (ith $odi'ication o' the civil inde$nity
a(arded to the heirs o' the victi$, Clarito 8lace, (hich is hereby increased to "/5,555.55.
S6 6<C7<7C.
Cruz, 8ellosillo and Luiason, JJ ., concur.
PEOPLE O4 THE PHILIPPINES, plaintiff-appellee, vs. PO6 ALBERT
ABRIOL, MACARIO ASTELLERO, and JAN7ARIO
5OS5OS, accused-appellants.
5 E C I S I O N
87IS7MBING, J.9
@n a&&ea# is t,e de*ision dated (a6 1-, 1995, o1 t,e Regiona# +ria# %ourt o1 %ebu %it6,
Iran*, 1/, in %rimina# %ases Nos. %IB!3/35/ 1or murder and %IB!33660 1or i##ega#
&ossession o1 1irearms, 1inding a&&e##ants '#bert 'brio#, (a*ario 'ste##ero, and Januario Dosdos
gui#t6 be6ond reasonab#e doubt o1 murder and vio#ation o1 Presidentia# De*ree No. 1866 on
;##ega# Possession o1 =irearms. ;ts de*reta# &ortion reads:
>:?R?=@R?, )udgement is ,ereb6 rendered:
;n %rimina# %ase No. %IB!3/35/ 1or (urder, t,e %ourt 1inds a**used '#bert 'brio#,
(a*ario 'ste##ero and Januario Dosdos, GB;7+ o1 murder be6ond reasonab#e doubt
and ea*, is ,ereb6 senten*ed to re!lusion perpetua, 2it, t,e a**essor6 &ena#ties
&rovided b6 #a2H to indemni16 t,e ,eirs o1 de*eased '#e)andro =#ores t,e sum o1
P5/,///.//H a*tua# damages o1 P3/,///.//, re&resenting a reasonab#e amount 1or t,e
emba#ming, vigi#, 2a3e, and buria# eG&ensesH P3/,///.// 1or attorne6As 1eesH and to
&a6 t,e *osts.
=or insu11i*ien*6 o1 eviden*e, a**used Gaudioso Nava#es is ,ereb6 '%QB;++?D
2it, !osts de oi!io.
;n %rimina# %ase No. %IB!33660 1or ;##ega# Possession o1 =irearms, a**used '#bert
'brio#, (a*ario 'ste##ero and Januario Dosdos, are ,ereb6 senten*ed to su11er an
indeterminate &ena#t6 o1 10 6ears, 8 mont,s and 1 da6 to 1- 6ears and 0 mont,s and
to &a6 t,e *osts.
+,e .38 *a#iber revo#ver, "N P/8005 and t,e t2o .05 *a#iber &isto#s 2it, "N PG@
135/6 and "N 5.069, are ,ereb6 *on1is*ated and 1or1eited in 1avor o1 t,e Government
and a**ording#6, t,e %#er3 o1 %ourt o1 t,is Iran*, is dire*ted to turn over t,e said
1irearms to t,e %,ie1 o1 Po#i*e, %ebu %it6, or to t,e =irearms and ?G&#osives @11i*e
8=?@9 o1 t,e PNP Region -, u&on &ro&er re*ei&t.
+,e %ebu %it6 %,ie1 o1 Po#i*e is dire*ted to re#ease immediate#6 u&on re*ei&t ,ereo1,
t,e &erson o1 Gaudioso Nava#es, un#ess t,ere be an6 ot,er va#id reason 1or ,is
*ontinued detention.
"@ @RD?R?D.
415
+,is )udgment 2as t,e *u#mination o1 &ro*eedings beginning 2it, t,e 'mended ;n1ormation
dated "e&tember 6, 1993, do*3eted as %rimina# %ase No. %IB!3/35/, 2,erein a&&e##ants P@.
'#bert 'brio# o1 t,e P,i#i&&ine Nationa# Po#i*e 8PNP9, (a*ario 'ste##ero, Januario Dosdos, and
PNP PE%,ie1 ;ns&e*tor Gaudioso Nava#es 2ere *,arged 2it, murder a##eged#6 *ommitted as
1o##o2s:
+,at on or about t,e 5
t,
da6 o1 June, 1993, at about 11:5/ P.(., in t,e %it6 o1 %ebu,
P,i#i&&ines and 2it,in t,e )urisdi*tion o1 t,is :onorab#e %ourt, t,e said a**used,
armed 2it, ,andguns, *onniving and *on1ederating toget,er and mutua##6 ,e#&ing one
anot,er, 2it, trea*,er6 and evident &remeditation, 2it, de#iberate intent, 2it, intent
to 3i##, did t,en and t,ere s,ot one '#e)andro =#ores a#ias '#eG 2it, t,e said ,andguns,
,itting ,im on t,e di11erent &arts o1 ,is bod6, t,ereb6 in1#i*ting u&on ,im t,e
1o##o2ing &,6si*a# in)uries:
%'RD;@ R?"P;R'+@R 'RR?"+ DB? +@ ":@%N 'ND
:?(@RR:'G? "?%@ND'R +@ (B7+;P7? GBN":@+ >@BND" +@
+:? +RBNN 'ND +:? :?'D
as a *onseFuen*e o1 2,i*, t,e said '#e)andro =#ores a#ias '#eG died #ater.
%@N+R'R +@ 7'>.
4.5
't t,e time o1 t,e in*ident, a&&e##ant 'brio#, a &o#i*eman &revious#6 detai#ed as a )ai#guard
at t,e Iagong Iu,a6 Re,abi#itation %enter 8IIR%9 in %ebu %it6, 2as ,imse#1 a detention
&risoner in IIR%. :e 2as *,arged 2it, murder, a non!bai#ab#e o11ense, in %rimina# %ase No.
%IB!.8803 be1ore t,e R+% o1 %ebu %it6, Iran*, 10.
435
'&&e##ant 'ste##ero 2as a 1ormer &risoner at IIR%, 2,o ,ad served time 1or grave t,reats.
405
+,e 2arden t,en, %,ie1 ;ns&e*tor Nava#es,
455
em&#o6ed ,im as ,is &ersona# driver and genera#
1a*totum.
465
Nava#es 2as 1ound gui#t6 o1 grave mis*ondu*t in 'dministrative %ase No. /1!93 1or
a##o2ing 'brio# and Dosdos out o1 IIR% on t,e da6 o1 t,e murder and 2as summari#6
dismissed 1rom t,e &o#i*e 1or*e.
Dosdos ,ad been *onvi*ted b6 t,e R+% o1 %ebu %it6, Iran*, 1/, o1 ,ig,2a6 robber6 in
%rimina# %ase No. %IB!1815. but Nava#es 1ai#ed to a*t on t,e mittimus ordering DosdosA
trans1er to t,e nationa# &enitentiar6, and ,e remained in IIR%.
4-5
'brio# and Dosdos en)o6ed
s&e*ia# &rivi#eges at IIR% as t,e 2ardenAs errand bo6s
485
or Ktrustees.L
+,e vi*tim, '#e)andro =#ores a#ias K'#eG,L 2as a 1ormer &o#i*eman. :e 2as dismissed 1rom
t,e PNP in 'ugust 199. a1ter testing &ositive 1or &ro,ibited drugs.
495
'brio#, 'ste##ero, and Dosdos 2ere a#so indi*ted 1or i##ega# &ossession o1 1irearms in
%rimina# %ase No. %IB!33660. +,e *,arge s,eet reads:
+,at on or about t,e 5
t,
da6 o1 June 1993 at about 11:08 P.(. in t,e %it6 o1 %ebu,
P,i#i&&ines, and 2it,in t,e )urisdi*tion o1 t,is :onorab#e %ourt, t,e said a**used,
*onniving and *on1ederating toget,er and mutua##6 ,e#&ing one anot,er, 2it,
de#iberate intent, did t,en and t,ere 3ee& under t,eir *ontro# and &ossession t,e
1o##o2ing:
1. one 819 .38 *a#. revo#ver 8'rms*or9 2it, "N P/8005 2it, siG
em&t6 s,e##sH
.. one 819 .05 *a#. &isto# 8%o#t9 2it, "N P6/135/6 2it, 9 #ive
ammunitions 8si*9H
3. one 819 .05 *a#. Pisto# 8%o#t9 2it, "N 5.069 2it, 1ive #ive
ammunitions.
2it,out 1irst obtaining a &ermit or #i*ense t,ere1or 1rom *om&etent aut,orit6.
%@N+R'R +@ 7'>.
41/5
>,en arraigned, a## t,e a**used &#eaded not gui#t6 to bot, *,arges. "in*e t,e indi*tments
arose 1rom t,e same in*ident, t,e *ases 2ere )oint#6 tried.
+,e 1a*ts o1 t,e *ase are as 1o##o2s:
't around 11:5/ P.(., June 5, 1993, Romeo "ta. %ru$, Jr., a radio ne2s re&orter t,en aboard
,is )ee&, ,ad )ust rea*,ed t,e 'I"!%IN *om&ound in P. de# Rosario "treet, %ebu %it6, 2,en ,e
,eard a *ou&#e o1 guns,ots. :e #oo3ed around and sa2 a man running unsteadi#6 to2ards t,e
interse*tion o1 P. de# Rosario "treet and Jones 'venue 8@smeOa Iou#evard9. +,e man 2as
s,outing -abang) tabang. 8K:e#&P :e#&PL9. "ta. %ru$, Jr., sa2 a red KJi116L ma3e a B!turn near
t,e gate o1 t,e *it6 *entra# s*,oo# t,at near#6 ran over t,e man s,outing 1or ,e#&. +,e man turned
ba*3 and staggered to2ards t,e dire*tion o1 Ia*a#so 'venue and Brge##o Private Road, but a1ter
a 1e2 meters on 2obb#6 #egs, ,e sto&&ed and *o##a&sed.
(ean2,i#e, t,e KJi116L 1o##o2ed. ;t sto&&ed beside t,e 1a##en 1igure and a ta##, t,in man
a#ig,ted. +,e man 1ired severa# s,ots at t,e &rostrate 1igure. :e boarded t,e KJi116L 2,i*, s&ed
a2a6 to2ards 7eon Ni#at "treet. Romeo "ta. %ru$, Jr., moved ,is )ee& and 1o*used its ,ead#ig,ts
on t,e vi*tim.
;n t,e meantime, P@3 '#eGander Ruste#a 2as at a vu#*ani$ing s,o& near t,e interse*tion o1
Ia*a#so 'venue and 7eon Ni#at "treet, 2,en ,e ,eard guns,ots *oming 1rom t,e nort,. :e ran
to2ards 2,ere t,e guns,ots *ame and sa2 &eo&#e s*am&ering. '## o1 a sudden, t,e KJi116L 2it,
t,ree &ersons on board s&ed &ast ,im and made an abru&t #e1t turn at 7eon Ni#at "treet. Ruste#a
immediate#6 radioed 1or assistan*e. (inutes #ater, &atro# *ar No. ./1 2it, P@. :erbert Ramos
on board arrived. Ruste#a boarded t,e *ar and t,e6 1o##o2ed t,e KJi116,L 2,i#e broad*asting an
a#arm to &o#i*e ,eadFuarters and ot,er mobi#e &atro# *ars.
@n nearb6 %o#on "treet, "P@1 ?#ea$ar 'brigana and P@. Romeo 'be##ana 2ere *ruising
aboard &atro# *ar No. ./8, 2,en t,e6 ,eard a radio message t,at t,e sus&e*ts in t,e s,ooting
in*ident 2ere aboard a KJi116.L 's t,e6 turned #e1t at 7eon Ni#at "treet, t,e6 sa2 t,e KJi116L
,eading to2ards %arbon (ar3et. +,e6 &ursued t,e KJi116L 2,i*, sto&&ed in 1ront o1 t,e Don
Ios*o Iui#ding near IIR%, 2,en &o#i*e *ar No. ./5, 2it, P@ ?ugenio Iadrinas and P@.
Gera#d %ue aboard, b#o*3ed t,e KJi116AsL &at,. %ue 1ired a 2arning s,ot and t,ree &ersons
a#ig,ted. +,e driver 2as a&&e##ant 'ste##ero, 2,om %ue ,ad re*ogni$ed and seen be1ore at t,e
IIR%. 'brigana and %ue a&&roa*,ed t,e trio 2,o stood a meter a2a6 1rom t,e KJi116.L "P@1
'brigana 1ris3ed 'brio# and sei$ed 1rom ,is 2aist a .38 *a#iber revo#ver 2it, seria# number
P@8085 2it, siG 869 em&t6 s,e##s in its *6#inder.
4115
Bnder 'brio#As seat, t,e &o#i*e a#so 1ound a .
05 *a#iber &isto# bearing seria# number PG@ 135/6 2it, nine 899 #ive rounds in its maga$ine and
anot,er .05 *a#iber &isto# 2it, seria# number 5.069 #oaded 2it, 1ive 859 un1ired bu##ets.
41.5
>,i#e t,e &atro# *ars 2ere *,asing t,e KJi116,L anot,er &o#i*e team &ro*eeded to t,e *rime
s*ene in res&onse to t,e a#arm. +,is team 1rom Po#i*e "tation No. 3 in "an Ni*o#as, %ebu %it6
rus,ed t,e vi*tim to t,e %ebu %it6 (edi*a# %enter, 2,ere ,e 2as &ronoun*ed dead on
arriva#. (ean2,i#e, P@3 %e#so "evi##e, Jr., a ,omi*ide investigator o1 Po#i*e "tation No. 3 1ound
1our 809 .05 *a#iber s,e##s some 1our 809 1eet a2a6 1rom t,e vi*timAs bod6, and t2o 8.9 de1ormed
s#ugs 2,ere t,e vi*tim ,ad #ain, and submitted t,em to t,e Region - PNP %rime 7aborator6 1or
ba##isti*s testing.
4135
Dr. 7adis#ao Dio#a, Jr., %,ie1 o1 t,e PNP Region - %rime 7aborator6 auto&sied t,e vi*timAs
bod6. :e 1ound t,at t,e *ause o1 t,e vi*timAs deat, 2as K*ardiores&irator6 arrest due to s,o*3
and ,emorr,age se*ondar6 to mu#ti&#e guns,ot 2ounds to t,e trun3 and ,ead.L
4105
Dr. Dio#a
re*overed a .38 *a#iber s#ug 1rom t,e *or&se, 2,i*, ,e #ater submitted 1or ba##isti*s eGamination.
"P@0 7emue# %aser, ba##isti*ian o1 t,e PNP %rime 7aborator6, re&orted t,e 1o##o2ing:
1. =ired *artridge *ases mar3ed KJ'!1L to KJ'!3L &ossesses simi#ar individua#
*,ara*teristi*s mar3ings 2it, t,e test *artridge *ases 1ired 1rom *a# .05 2it, "N:
PG@135/6H
.. =ired *artridge *ases mar3ed KJ'!0L and K?!69!6L &ossesses simi#ar individua#
*,ara*teristi*s mar3ings 2it, t,e test *artridge *ases 1ired 1rom *a# .05 &isto# 2it, "N:
5.069H
3. =ired bu##et meta# )a*3et mar3ed KJ'!5L &ossesses simi#ar individua# *,ara*teristi*s
mar3ings 2it, test bu##ets 1ired 1rom *a# .05 &isto# 2it, "N: PG@135/6H
0. =ired *artridge *ases mar3ed K?!05!1L to K?!05!6L &ossesses simi#ar individua#
*,ara*teristi*s mar3ings 2it, t,e test *artridge *ases 1ired 1rom *a# .38 Rev. "N:
P8005H
5. =ired bu##ets mar3ed as KJ'!6L and K7DL &ossesses simi#ar individua# *,ara*teristi*
mar3ings 2it, t,e test bu##ets 1ired 1rom *a# .38 Rev. "N: P8005.
4155
+,e 1o##o2ing da6, a&&e##ants under2ent a &ara11in test. +,e ,ands o1 a&&e##ants 2ere 1ound
&ositive 1or gun&o2der residues. ' *,emistr6 test on t,e 1irearms s,o2ed t,at t,e t,ree
,andguns 2ere a#so &ositive. ;ns&e*tor (6rna 'reo#a, %,ie1 o1 t,e %,emistr6 "e*tion o1 t,e
PNP Region - %rime 7aborator6, stated in ,er testimon6 t,at t,e 1irearms ,ad been 1ired,
4165
and
t,at a&&e##ants ,ad 1ired t,e guns 2it,in a &eriod o1 sevent6!t2o 8-.9 ,ours &rior to t,e
eGamination.
+,e 2ido2 and re#atives o1 t,e vi*tim testi1ied on t,e &ossib#e motive be,ind t,e
3i##ing. +,e6 *#aimed t,e vi*tim, a *on1essed drug user, ma6 ,ave been Krubbed outL on t,e
orders o1 Nava#es 1or 1ai#ure to remit P31,/// as &ro*eeds 1rom &us,ing &ro,ibited drugs. '1ter
1ai#ing to de#iver t,e drug mone6 to Nava#es, 1or 2,om ,e 2as re&eated#6 &us,ing drugs, t,e
vi*tim 2ent into ,iding, but #ater returned to %ebu %it6 be*ause ,e missed ,is 1ami#6.
41-5
'&&e##ants den6 t,e a**usations. 'brio# averred t,at ,e and Dosdos 2ere among t,e severa#
KtrusteesL at IIR% assigned to 2or3 in t,e 3it*,en. '&&e##ant 'ste##ero, 2,o 2as t,e 2ardenAs
driver, 2as a#so in *,arge o1 mar3eting 1or t,e &risonersA 1ood. @n t,e da6 o1 t,e in*ident,
'ste##ero rea#i$ed t,at t,ere 2as no mone6 1or t,e neGt da6As mar3eting so ,e as3ed 'brio# to
a**om&an6 ,im to t,e ,ouse o1 Nava#es, but sin*e ,e 2as not in, t,e6 returned to IIR% and sa2
Nava#es an ,our #ater. '1ter t,e6 re*eived t,e mone6 1rom Nava#esA nie*e on t,eir 2a6 ba*3 to
IIR%, Dosdos ,eard guns,ots. 'brio# ordered 'ste##ero, 2,o 2as driving, to turn ba*3. +,en
'brio# *#aimed ,e sa2 a ta##, s#im man a#ig,t 1rom a KJi116L and s,oot at a &rone 1igure on t,e
ground. "e*onds #ater, t,e gunman returned to t,e KJi116,L 2,i*, s&ed o11. 'brio# said ,e
ordered 'ste##ero to *,ase t,at KJi116L but it ,ad too mu*, o1 a ,eadstart and t,e6 #ost sig,t o1
it. 'brio# ordered 'ste##ero to &ro*eed to IIR%. 't %o#on "treet, t,e6 ,eard guns,ots be,ind
t,em and t,e b#aring siren o1 a &o#i*e *ar. +,e6 eG&#ained t,at sin*e t,e6 2ere detention
&risoners, t,e6 ,ad to evade meeting t,e &o#i*e. +,e6 ,eard more gun s,ots. B&on rea*,ing
IIR%, t,e gates 2ere *#osed, so t,e6 drove to t,e o#d air&ort. @n t,eir 2a6 ba*3 to IIR%
severa# &o#i*e *ars b#o*3ed t,em and arrested t,em. "P@0 ?#ea$ar 'brigana 1ris3ed ,im and
too3 t,e .38 servi*e revo#ver 1rom ,is 2aist.
4185
'brio# a#so testi1ied t,at ,e surrendered ,is servi*e 1irearm to t,e IIR% 'dministrative
@11i*er 2,en ,e 2as served a 2arrant o1 arrest 1or murder in %rimina# %ase No. %IB!
.8803. :o2ever, t,e ,andgun 2as de1e*tive and it 2as returned to ,im 1or re&air b6 'rms*or,
and u&on re&air ,e ,anded it over to t,e IIR% armor6. +,e armorer returned it to ,im sin*e
t,ere 2as no &#a*e to 3ee& it. :e said t,at a#t,oug, ,e 2as a detention &risoner, ,e ,ad 6et to be
dis*,arged 1rom t,e servi*e. :e 2as assigned guard and es*ort duties b6 t,e 2arden.
4195
'brio#
said t,at on t,e da6 o1 t,e in*ident ,e 2as, as a IIR% )ai#guard, aut,ori$ed to *arr6 ,is servi*e
1irearm.
4./5
:e &resented a (emorandum Re*ei&t
4.15
aut,ori$ing ,im to *arr6 t,e government!
issued .38 revo#ver.
4..5
@n t,e 2itness stand, 'ste##ero and Dosdos narrated a simi#ar version o1 t,e in*ident as did
'brio#. Iot, ve,ement#6 denied ,aving an6 3no2#edge o1 t,e t2o .05 *a#iber &isto#s 1ound b6
P@3 %ue in t,e KJi116.L
4.35
+,e de1ense a#so &resented Dr. Jesus P. %erna, medi*o!#ega# o11i*er o1 t,e %ebu %it6 PNP
%ommand, to testi16 on t,e *a#iber o1 t,e 1irearms 2,i*, mig,t ,ave *aused t,e guns,ot 2ounds
o1 t,e vi*tim. Re#6ing on t,e Ne*ro&s6 Re&ort &re&ared b6 Dr. Dio#a, Dr. %erna de*#ared t,at
2ound nos. 1 and ., 2,i*, ea*, measured /.6 *m. b6 /.6 *m., ma6 ,ave been *aused b6 a .38
*a#iber 1irearm. 's to 2ound nos. 3 and 0, 2,i*, ea*, measured /.5 *m. b6 /.5 *m., it 2as
&ossib#e t,at a .38 ,andgun 2as used, or one 2it, a sma##er bore. Dr. %erna o&ined t,at a .05
&isto# *ou#d not ,ave in1#i*ted a## t,e 1oregoing 2ounds, as t,e entr6 &oints 2ere too sma## 1or a .
05 *a#iber bu##et. >it, res&e*t to t,e gra$ing 2ounds 1ound on t,e vi*timAs bod6, Dr. %erna
testi1ied t,at it 2as im&ossib#e to determine t,e *a#iber o1 t,e 1irearm used.
4.05
+,e tria# *ourt 1ound a&&e##antsA version o1 t,e in*ident neit,er *onvin*ing and *redib#e and,
as ear#ier stated, it be#ieved t,e &rose*utionAs version. PetitionersA 2ere *onvi*ted o1 t,e o11enses
*,arged.
:en*e, t,is a&&ea#, 2it, a&&e##ants assigning t,e 1o##o2ing errors:
I
+:? 7@>?R %@BR+ ?RR?D ;N %@N<;%+;NG +:? '%%B"?D!'PP?77'N+"
@= +:? %R;(?" @= (BRD?R 'ND ;77?G'7 P@""?"";@N @= =;R?'R("
D?"P;+? +:? =7;(" 'ND BNR?7;'I7? ?<;D?N%? PR?"?N+?D I +:?
PR@"?%B+;@N.
II
+:? 7@>?R %@BR+ ?RR?D ;N =;ND;NG +:? GB;7+ @= +:? '%%B"?D!
'PP?77'N+" @= +:? %R;(? @= (BRD?R 'ND ;77?G'7 P@""?"";@N @=
=;R?'R(" I?@ND R?'"@N'I7? D@BI+.
't issue is 2,et,er t,e &rose*utionAs eviden*e, 2,i*, is main#6 *ir*umstantia#, su11i*es to
*onvi*t a&&e##ants 1or murder and vio#ation o1 Presidentia# De*ree No. 1866, be6ond reasonab#e
doubt.
A. Criinal Case No. C!"-#$#%$
@n t,eir *onvi*tion 1or murder, a&&e##ants argue t,at t,e &rose*utionAs *ir*umstantia#
eviden*e against t,em is 2ea3, ambiguous, and in*on*#usive. "&e*i1i*a##6, a&&e##ants *ontend
t,at t,e6 s,ou#d be a*Fuitted be*ause:
/irst, e6e2itness Romeo "ta. %ru$, Jr., did not &ersona##6 identi16 t,em as t,e *u#&rits. 't
no &oint in ,is testimon6 did e6e2itness "ta. %ru$, Jr., &ositive#6 identi16 an6 o1 t,e a&&e##ants or
a&&e##ant 'brio# as t,e gunman. "ta. %ru$, Jr. on#6 gave a genera# des*ri&tion o1 t,e assai#ants,
des&ite attem&ts to ma3e ,im give a *ategori*a# identi1i*ation. :e admitted ,e 1ound out t,e
name o1 'brio# 1rom te#evision and ne2s re&orts and *ou#d not identi16 'brio# as t,e one 2,om
,e sa2 s,ot t,e vi*tim. +,e trans*ri&t o1 ,is testimon6 is revea#ing.
Q: +,en a1ter t,e Ji116 sto&&ed in 1ront o1 t,e 1a##en vi*tim, 2,at ,a&&ened neGtQ
': ; sa2 t,at t,ere 2as a man 2,o disembar3ed 1rom t,e Ji116. :e 2as a ta##, t,in 1e##o2 2,o
disembar3ed 1rom t,e Ji116 and at t,e same time, ,e s,ot t,e 1a##en vi*tim.
Q: :o2 man6 times did ,e s,oot t,e vi*timQ
': ; *annot *ount attorne6 but ; sa2 ,im s,ooting t,e vi*tim.
Q: ;n 6our a11idavit, 6ou said t,at t,e &erson 2,o disembar3ed 1rom t,e Ji116, 2,ose name 6ou
3no2 #ater on as P@. '#bert 'brio#, PNP, s,ot t,e vi*tim in t,e di11erent &arts o1 ,is bod6. ;1
'#bert 'brio# is no2 in t,e *ourtroom, 2i## 6ou &#ease &oint to ,imQ
': ; 2i## 3no2 ,im attorne6 be*ause o1 t,e +< s,o2s and ne2s&a&ers.
%@BR+: 8+@ >;+N?""9
Q: ou are re1erring to t,e name o1 t,at man 2,o disembar3ed 1rom t,e Ji116 and 1ired severa# s,ots
at t,e 1a##en vi*timQ
': es, ; 3no2 ,is name our :onor on 8si*9 t,e ne2s *ast.
%@BR+: 8+@ >;+N?""9
Q: '#rig,t, 1orget t,e ne2s. +,e man 6ou sa2 2,en ,e a#ig,ted 1rom t,e Ji116 and &oured 8si*9
severa# bu##ets on t,e 1a##en man, #oo3 around i1 ,e is in t,e *ourtroomQ
': I !annot identiy 0our 1onor.
%@BR+:
Q: ou *annotQ
': 2ut 3be!ause4 what I saw is a man who is tall and thin be!ause it was dark.
G G G
Q: :o2 man6 &ersons 1ired a s,ot at t,e 1a##en manQ
': ; on#6 sa2 t,at man our :onor 2,o a#ig,ted 1rom t,e Ji116.
Q: Did 6ou see ,is &,6si*a# 1eaturesQ
': Only 5t6his) I !an only tell his height) he was tall and his body build is thin. -all and
thin. 8?m&,asis su&&#ied9
4.55
"in*e t,e so#e e6e2itness *ou#d not identi16 t,e gunman and ,is *om&anions, t,e
&rose*ution re#ied on *ir*umstantia# eviden*e 1rom 2,i*, t,e tria# *ourt *ou#d dra2 its 1indings
and *on*#usion o1 *u#&abi#it6.
4.65
%ir*umstantia# eviden*e ma6 be re#ied u&on, as in t,is *ase,
2,en to insist on dire*t testimon6 2ou#d resu#t in setting 1e#ons 1ree.
Se!ond, a&&e##ants assert t,at t,e &ara11in tests are )udi*ia##6 re*ogni$ed as unre#iab#e and
in*on*#usive. ' &ara11in test *ou#d estab#is, t,e &resen*e or absen*e o1 nitrates on t,e
,and. :o2ever, it *annot estab#is, t,at t,e sour*e o1 t,e nitrates 2as t,e dis*,arge o1
1irearms. Nitrates are a#so 1ound in substan*es ot,er t,an gun&o2der. ' &erson 2,o tests
&ositive ma6 ,ave ,and#ed one or more substan*es 2it, t,e same &ositive rea*tion 1or nitrates
su*, as eG&#osives, 1ire2or3s, 1erti#i$ers, &,arma*euti*a#s, toba**o, and #eguminous
&#ants. :en*e, t,e &resen*e o1 nitrates s,ou#d on#6 be ta3en as an indi*ation o1 a &ossibi#it6 t,at
a &erson ,as 1ired a gun.
4.-5
:o2ever, it must be borne in mind t,at a&&e##ants 2ere not *onvi*ted
on t,e so#e basis o1 t,e &ara11in test.
-hird, a&&e##ants *#aim t,at t,e auto&s6 re&ort o1 &rose*ution 2itness Dr. 7adis#ao Dio#a
revea#ed serious ambiguities.
4.85
Dr. Jesus P. %erna, using t,e same auto&s6 re&ort, said t,at t,e
guns,ot 2ounds measuring /.6 G /.6 *entimeters *ou#d not ,ave been *aused b6 a .05 *a#iber
&isto# be*ause an entran*e 2ound o1 t,at si$e 2as too sma## 1or a .05 *a#iber bu##et.
4.95
Dr. %erna
*#aimed t,at a 2ound in1#i*ted b6 a .05 &isto# 2ou#d ,ave an entr6 &oint o1 an62,ere 1rom 1.1 to
1.3 *entimeters. :e de*#ared t,at it 2as 2it, more reason t,at an entran*e 2ound measuring .5 G
.5 *entimeters *ou#d not be *aused b6 a *a#iber .05 bu##et.
43/5
"in*e no 1irearm sma##er t,an a .38
*a#iber &isto# 2as sei$ed 1rom a&&e##ants, t,e6 *#aim t,e observation o1 Dr. %erna on#6 s,o2s
t,at t,e6 *ou#d not ,ave s,ot t,e vi*tim.
>e note, ,o2ever, t,at during *ross!eGamination, Dr. Dio#a *are1u##6 eG&#ained t,at a
1irearmAs *a#iber is not t,e on#6 basis 1or determining t,e *ause o1 t,e guns,ot 2ound. :e said:
'++. R?(@+;QB?:
Q: "o, norma##6 t,e si$e o1 .5 *m G .5 *m 2,i*, is t,e &oint o1 entr6 o1 guns,ot 2ound No. 3 t,is
ma6 ,ave been *aused b6 a 1irearm o1 #esser *a#iber t,an *a#iber .38Q
': Not ne*essari#6. +,ere is a ver6 sma## di11eren*e in t,e si$e and t,is does not &re*#ude t,at
guns,ot 2ound No. 3 ma6 ,ave a#so been *aused b6 t,e same 1irearm 2,i*, *aused guns,ot
2ounds Nos. 1 and .. -here are a!tors whi!h oten ae!t the si(e o the wounds at the time o
the e7amination) perhaps a re!ission 5si!6 o the skin in the area where gunshot &ound %o. 8 was
inli!ted so that gunshot wound be!omes smaller.
Q: Did 6ou not sa6 t,at norma##6 t,e &oint o1 entr6 o1 t,e guns,ot 2ounds var6 2it, t,e *a#iber o1
t,e 1irearm 2,i*, *aused it, so t,at t,e &oint o1 entr6 *aused b6 one 1irearm o1 a &arti*u#ar *a#iber
ma6 be bigger t,an t,e &oint o1 entr6 o1 a guns,ot 2ound *aused b6 anot,er 1irearm o1 #esser
*a#iberQ
': I told you o other a!tors that oten ae!t the si(e o the entry o the bullet although the !aliber
is one basis o the si(e o the wounds.
G G G
Q: >i## 6ou eG&#ain 1urt,er on t,at be*ause m6 understanding is t,at .5 *m 2ound must &er1or*e be
*aused b6 a 1irearm o1 #esser *a#iber t,an t,at 2,i*, *aused t,e .6 *m 2oundQ
': 's ; said t,ere are ranges in t,e si$e o1 t,e 2ounds. +,e varian*e in t,e si$e o1 t,e 2ound 2,en
it is minima# does not eG*#ude t,e &ossibi#it6 t,at a 2ound 2it, a .5 *m si$e and .6 *m si$e *ou#d
,ave been *aused b6 t,e same *a#iber. 8?m&,asis su&&#ied9.
4315
+,e @11i*e o1 t,e "o#i*itor Genera# &oints out t,at Dr. Dio#aAs testimon6 is su&&orted b6 Dr.
Pedro P. "o#is, a medi*a# eG&ert, in ,is boo3 entit#ed Legal *edi!ine. +,e 1a*tors 2,i*, *ou#d
ma3e t,e 2ound o1 entran*e bigger t,an t,e *a#iber in*#ude: 819 s,ooting in *onta*t or near 1ireH
8.9 de1ormit6 o1 t,e bu##et 2,i*, enteredH 839 a bu##et 2,i*, mig,t ,ave entered t,e s3in
side2iseH and 809 an a*ute angu#ar a&&roa*, o1 t,e bu##et. :o2ever, 2,ere t,e 2ound o1
entran*e is sma##er t,an t,e 1irearmAs *a#iber, t,e same ma6 be attributed to t,e 1ragmentation o1
t,e bu##et be1ore entering t,e s3in or to a !ontra!tion o the elasti! tissues o the skin8stress
su&&#ied9.
43.5
Dr. Dio#a testi1ied t,at a .05 *a#iber &isto# *ou#d ,ave *aused t,e gra$ing 2ounds on
t,e vi*timAs ,ead and eGtremities.
4335
Dr. %erna *orroborated Dr. Dio#aAs 1indings in t,is regard.
4305
"u*, eG&ert o&inions dis&rove a&&e##antsA t,eor6 t,at t,e .05 *a#iber ,andguns *on1is*ated
1rom t,em *ou#d not ,ave been used in 3i##ing t,e vi*tim.
/ourth, a&&e##ants a##ege t,at t,e testimon6 o1 PE;ns&e*tor 7emue# %aser, t,e &rose*utionAs
ba##isti*s eG&ert, *#ear#6 s,o2s t,at: 819 :e is ignorant about su*, ba##isti*s instruments su*, as
t,e mi*rometer, goniometer, and &ressure barre#.
4355
8.9 :e is not *onversant 2it, Kt,e reFuired
re1eren*es *on*erning ba##isti*s,L &arti*u#ar#6 boo3s on t,e sub)e*t b6 1oreign aut,orities.
4365
839
:e *ou#d not Ks*ienti1i*a##6 determine t,e *a#iber o1 a bu##et.L
43-5
"in*e PE;ns&e*tor %aser #a*3ed
adeFuate training and eG&ertise in ba##isti*s, t,e6 *#aim t,at ,is o&inion t,at t,e test bu##ets and
*artridges mat*,ed t,e s#ugs and *artridges re*overed 1rom t,e s*ene o1 t,e *rime 2as not
re#iab#e. '&&e##ants a#so assai# %aserAs 1ai#ure to ta3e t,e ne*essar6 &,otogra&,s to su&&ort ,is
1indings.
'n eG&ert 2itness is Kone 2,o be#ongs to t,e &ro1ession or *a##ing to 2,i*, t,e sub)e*t
matter o1 t,e inFuir6 re#ates and 2,o &ossesses s&e*ia# 3no2#edge on Fuestions on 2,i*, ,e
&ro&oses to eG&ress an o&inion.L
4385
+,ere is no de1inite standard o1 determining t,e degree o1
s3i## or 3no2#edge t,at a 2itness must &ossess in order to testi16 as an eG&ert. ;t is su11i*ient t,at
t,e 1o##o2ing 1a*tors be &resent: 819 training and edu*ationH 8.9 &arti*u#ar, 1irst!,and 1ami#iarit6
2it, t,e 1a*ts o1 t,e *aseH and 839 &resentation o1 aut,orities or standards u&on 2,i*, ,is o&inion
is based.
4395
+,e Fuestion o1 2,et,er a 2itness is &ro&er#6 Fua#i1ied to give an eG&ert o&inion on
ba##isti*s rests 2it, t,e dis*retion o1 t,e tria# *ourt.
40/5
;n giving *reden*e to %aserAs eG&ert testimon6, t,e tria# *ourt eG&#ained:
+,e de1ense do2ngraded t,e *a&abi#it6 o1 %aser in 1orensi*s ba##isti*s and identi16ing
1irearms. (u*, stress is given to t,e absen*e o1 &,otogra&,s o1 ,is
eGamination. Nonet,e#ess, t,e %ourt is satis1ied 82it,9 %aserAs eGamination, 1indings
and *on*#usions 2it, t,e use o1 a mi*ros*o&e. %aserAs *on*#usion based on ,is
eGamination deserves *redit. :e 1ound t,e im&ressions on t,e &rimer o1 t,e 1ired
*artridges t,at 2ere test!1ired to ,ave t,e same *,ara*teristi*s 2it, t,ose re*overed at
t,e s*ene o1 t,e *rime. >,enever a triggerman &um&s a bu##et 8into9 t,e bod6 o1 ,is
vi*tim, ,e re#eases a *,un3 o1 *on*rete eviden*e t,at binds ,im inse&arab#6 to ,is
a*t. ?ver6 gun barre# dee im&rints on ever6 bu##et its *,ara*teristi* mar3ing
&e*u#iar to t,at gun and t,at gun a#one. +,ese mar3ing mig,t be mi*ros*o&i* but t,e6
are terrib#6 vo*a# in announ*ing t,eir origin. 'nd t,e6 are as in1a##ib#e 1or &ur&oses o1
identi1i*ation, as t,e &rint #e1t b6 t,e ,uman 1inger.
4015
>e agree 2it, t,e tria# *ourt t,at PE;ns&e*tor %aser Fua#i1ies as a ba##isti*s eG&ert. :e is a
#i*ensed *rimino#ogist, trained at t,e Ia##isti*s %ommand and 7aborator6 %enter in =ort
Ioni1a*io, in t,e PNP %rime 7aborator6 in %am& %rame, and in t,e Nationa# Iureau o1
;nvestigation. :e ,ad &revious#6 testi1ied as an eG&ert 2itness in at #east t2ent6!seven 8.-9
murder and ,omi*ide *ases a## over t,e *ountr6.
40.5
'n eG&ert 2itness need not &resent
*om&arative mi*ro&,otogra&,s o1 test bu##ets and *artridges to su&&ort ,is 1indings.
4035
?Gamination under a *om&arison mi*ros*o&e s,o2ing t,at t,e test bu##et and t,e eviden*e
bu##et bot, *ame 1rom t,e same gun is su11i*ient.
4005
(oreover, t,e ba##isti*ian *on*#usive#6 1ound
simi#ar *,ara*teristi* mar3ings in t,e eviden*e, test *artridges and s#ugs.
/ith, a&&e##ants aver t,at t,e &rose*ution 1ai#ed to s,o2 an6 &#ausib#e motive 1or a&&e##ants
to 3i## t,e vi*tim. +,e &rose*ution tried to &rove t,at t,eir *o!a**used Nava#es instigated t,em to
3i## t,e vi*tim be*ause Nava#es ,ad a grudge against ,im. :o2ever, as Nava#es 2as a*Fuitted,
a&&e##ants insist t,at Nava#esA a*Fuitta# s,ou#d redound to t,eir bene1it sin*e no motive 2as
im&uted on t,eir &art.
(otive is not an essentia# e#ement o1 a *rime,
4055
&arti*u#ar#6 o1 murder.
4065
;t be*omes re#evant
on#6 2,ere t,ere is no &ositive eviden*e o1 an a**usedAs dire*t &arti*i&ation in t,e *ommission o1
a *rime.
40-5
"tated ot,er2ise, &roo1 o1 motive be*omes essentia# to a *onvi*tion on#6 2,ere t,e
eviden*e o1 an a**usedAs &arti*i&ation in an o11ense is *ir*umstantia#.
4085
' *are1u# &erusa# o1 t,e
"tateAs eviden*e revea#s t,at t,e &rose*ution ,ad estab#is,ed su11i*ient motive 2,6 a&&e##ants
3i##ed t,e vi*tim, inde&endent o1 an6 grudge 2,i*, Nava#es ma6 ,ave ,ad against t,e #atter. 't
t,e time o1 t,e in*ident, a&&e##ants 'brio# and Dosdos 2ere bot, IIR% detention &risoners
during Nava#esA term as 2arden. 'brio# and Dosdos 2ere treated as ,ig,#6 1avored KtrusteesL o1
Nava#es and 2ere never #o*3ed u&. 'brio# and Dosdos 2ere even a##o2ed to go out o1 IIR% to
do t,e mar3eting 1or t,e &risonAs 3it*,en. '&&e##ant 'ste##ero, a 1ormer detention &risoner, 2as
a#so a re*i&ient o1 Nava#esA 1avors. Nava#es ,ired 'ste##ero as ,is &ersona# driver a1ter t,e #atter
served ,is senten*e. Nava#es and t,e vi*tim, a 1ormer IIR% )ai#guard, 2ere asso*iates in
dea#ing 2it, &ro,ibited drugs, unti# t,e6 ,ad a 1a##ing out a##eged#6 a1ter t,e vi*tim 1ai#ed to
remit to Nava#es &ro*eeds 1rom t,e sa#e o1 i##ega# drugs amounting to P31,///. '&&e##ants
a&&arent#6 3i##ed t,e vi*tim to return t,e Ks&e*ia# 1avorsL Nava#es ,ad s,o2ered t,em. 7a*3 o1 a
motive does not ne*essari#6 &re*#ude *onvi*tion. Persons ,ave been 3i##ed or assau#ted 1or no
reason at a##, and 1riends,i& or even re#ations,i& is no deterrent to t,e *ommission o1 a *rime.
4095
Si7th) in t,e &resent *ase, a&&e##ants *ontend t,at t,e PNP *annot be &resumed to ,ave done
t,eir 2or3 sin*e it *ommitted errors and b#unders in trans1erring &ossession and *ustod6 o1 t,e
&,6si*a# eviden*e. +,e6 a##ege t,ere 2as a &ossibi#it6 t,at t,e eviden*e 2as tainted, &#anted, or
manu1a*tured. Iesides, a&&e##ants &oint out t,at t,e &resum&tion o1 regu#arit6 *annot &revai#
over t,e *onstitutiona# &resum&tion o1 inno*en*e o1 t,e a**used.
+,e re*ord s,o2s t,at t,e &o#i*e o11i*ers did not issue a*3no2#edgement re*ei&ts in some
instan*es. :o2ever, minor #a&ses do not mean t,at t,e "tate ,ad 1ai#ed to s,o2 an unbro3en
*,ain o1 *ustod6 o1 t,e sub)e*t 1irearms and ammunition, nor t,at said 1irearms and ammunition
2ere tam&ered. +,e s#ugs and s&ent s,e##s re*overed 1rom t,e s*ene o1 t,e *rime and t,e
vi*timAs *or&se 2ere &#ain#6 identi1ied in o&en *ourt b6 t,e PNP investigators. +,e ba##isti*ian
testi1ied t,at t,e bu##ets and *artridges re*overed 1rom t,e *rime s*ene ,ad been 1ired 1rom t,e
sub)e*t ,andguns. Bnder t,ese *ir*umstan*es, 2e must res&e*t t,e &resum&tion o1 t,e regu#arit6
in t,e &er1orman*e o1 duties.
Seventh) a&&e##ants insist t,at t,e &rose*ution 1ai#ed to s,o2 t,at t,e red KJi116L used b6
t,em and sei$ed b6 t,e &o#i*e o11i*ers 2as t,e same ve,i*#e used b6 t,e gunmen 2,o 3i##ed
'#e)andro =#ores. '&&e##ants &oint out t,at P@3 Ruste#a, 2,o 2as aboard &o#i*e *ar No. ./1,
testi1ied t,at t,e6 #ost sig,t o1 t,e red KJi116L 2,i#e *,asing it a#ong 7eon Ni#at
"treet. '&&e##ants argue t,at t,e KJi116L 2,i*, 2as *,ased b6 &atro# *ar No. ./8 unti# it 2as
*ornered near IIR% b6 t,e ot,er &ursuing &atro# *ars 2as not t,e same ve,i*#e origina##6
sig,ted and tai#ed b6 &atro# *ar No. ./1.
;n re)e*ting t,is t,eor6, t,e tria# *ourt stated t,at:
MP@3 Ruste#a 2,o 2as nearb6, immediate#6 ran to t,e s*ene o1 t,e *rime and met
t,e red )i116 2it, t,ree &ersons on board, t,at s&eedi#6 &assed b6 ,im &ro*eeding
to2ards 7eon Ni#at "treet. %ar ./8 readi#6 &i*3ed u& t,e trai# and &ursued t,e red
)i116 1rom 7eon Ni#at, t,en ma3ing abru&t turns on do2nto2n streets unti# ot,er &atro#
*ars )oined t,e *,ase and *a&tured t,em in 7a,ug, near t,e IIR%. +,e identit6 o1 t,e
red )i116 2as never interru&ted. (embers o1 t,e (obi#e Patro# %ars identi1ied in *ourt
2it,out batting an e6e#as,, t,e red )i116 2,i*, 2as t,e ob)e*t o1 t,e s,ooting
a#arm. +,ere 2as no interru&tion, no #et!u& in t,e *,ase, rig,t a1ter '#e)andro =#ores
2as s,ot and t,ere 2as no ot,er red )i116 t,at t,e *re2s o1 t,e 8&ursuing9 &atro# *ars
noti*ed.
+,e %ourt re)e*ts t,eir *#aim o1 inno*en*e, 1or t,eir ver6 a*ts be#ied t,e same.
'ste##ero *ou#d ,ave sto&&ed t,e )ee& u&on noti*ing t,at &atro# *ars 2ere a#read6
running a1ter t,em 2it, sirens, b#in3ers and 2arning s,ots 1ired. =rom 7eon Ni#at
"treet to 7a,ug air&ort, t,ere 2ere severa# &o#i*e stations t,at t,e6 *ou#d ,ave soug,t
s,e#ter and &o#i*e assistan*e. Gui#t ,as man6 2a6s o1 sur1a*ing. ;nstead o1 sto&&ing,
'brio# ordered 'ste##ero to a**e#erate t,eir s&eed. +,eir obvious &ur&ose 2as to e#ude
t,e &atro# *ars. =#ig,t is indi*ative o1 gui#t.
45/5
Iut, in t,is *ase, is t,e tota#it6 o1 t,e *ir*umstantia# eviden*e re#ied u&on b6 t,e tria# *ourt
su11i*ient to su&&ort a *onvi*tionQ
%ir*umstantia# eviden*e is t,at 2,i*, indire*t#6 &roves a 1a*t in issue. =or *ir*umstantia#
eviden*e to be su11i*ient to su&&ort a *onvi*tion, a## t,e *ir*umstan*es must be *onsistent 2it,
ea*, ot,er, *onsistent 2it, t,e t,eor6 t,at t,e a**used is gui#t6 o1 t,e o11ense *,arged, and at t,e
same time in*onsistent 2it, t,e ,6&ot,esis t,at ,e is inno*ent and 2it, ever6 ot,er &ossib#e,
rationa# ,6&ot,esis, eG*e&t t,at o1 gui#t.
4515
'n a**used *an be *onvi*ted on t,e basis o1
*ir*umstantia# eviden*e 2,ere a## t,e *ir*umstan*es *onstitute an unbro3en *,ain #eading to one
1air and reasonab#e *on*#usion &ointing to t,e a**used, to t,e eG*#usion o1 a## ot,ers, as t,e
*u#&rit.
45.5
;n our assessment, t,e &rose*utionAs eviden*e *onstitutes an unbro3en *,ain o1 events
#eading to t,e inevitab#e *on*#usion o1 gui#t on t,e &art o1 a&&e##ants. =irst, t,e 1ata# s,ooting o1
'#e)andro =#ores o**urred at around 11:5/ P.(. o1 June 5, 1993 in 1ront o1 t,e 'I"!%IN
*om&ound in %ebu %it6. +,e gunman, 2,o 2as ta## and t,in, a#ig,ted 1rom a red KJi116,L
&um&ed severa# bu##ets into t,e &rone vi*tim, and got ba*3 aboard t,e KJi116L 2,i*, t,en s&ed
to2ards 7eon Ni#at "treet. "e*ond, e6e2itness Romeo "ta. %ru$, Jr.As des*ri&tion o1 t,e gunman
as Kta## and t,inL &er1e*t#6 mat*,es t,e &,6siFue o1 a&&e##ant 'brio#. +,ird, P@3 '#eGander
Ruste#a, 2,o 2as *#ose to t,e *rime s*ene, ,eard t,e guns,ots and ran to2ards t,e &#a*e 2,ere
t,e sound o1 guns,ots emanated. ' red KJi116L 2it, t,ree &ersons aboard 2,i$$ed b6 ,im and
abru&t#6 turned at 7eon Ni#at "treet. '1ter "ta. %ru$, Jr. in1ormed ,im t,at t,e gunmen 2ere
aboard a red KJi116,L Ruste#a boarded &atro# *ar No. ./1, radioed an a#arm, and *ommen*ed a
&ursuit o1 t,e 1#eeing ve,i*#e. Po#i*e *ar no. ./8 re*eived t,e a#arm, and on turning into 7eon
Ni#at "treet, en*ountered t,e s&eeding red KJi116.L +,e6 immediate#6 *,ased t,e KJi116L but 1ai#ed
to *at*, it. Po#i*e *ars Nos. ./8 and ./5 *ornered t,e ve,i*#e in 1ront o1 t,e Don Ios*o bui#ding
near IIR%. P@. Gera#d %ue, on &atro# *ar no. ./5 1ired a 2arning s,ot at t,e ve,i*#e and
dire*ted a## t,ose aboard to disembar3. +,ree men got out, 2it, t,eir ,ands raised. "P@1
'brigana, on &atro# *ar no. ./8 and P@. %ue a&&roa*,ed t,e trio. 'brigana 1ris3ed t,e man 2,o
2as seated in t,e 1ront &assenger seat, 2,o turned out to be a&&e##ant 'brio#, and re*overed 1rom
,is 2aist a .38 *a#iber revo#ver 2it, siG em&t6 s,e##s. %ue sear*,ed t,e red KJi116L and 1ound
t2o #oaded .05 *a#iber &isto#s under t,e 1ront seat 2,ere 'brio# ,ad sat. @t,er &o#i*e o11i*ers
immediate#6 2ent to t,e *rime s*ene 2,ere t,e6 1ound t,e vi*tim bare#6 a#ive. P@3 "evi##e
retrieved 1our .05 *a#iber s#ugs and t2o de1ormed s#ugs at t,e s&ot 2,ere t,e vi*tim 2as
s,ot. +,e auto&s6 o1 t,e vi*timAs remains s,o2ed t,at ,e died o1 *ardio res&irator6 arrest due to
s,o*3 and ,emorr,age se*ondar6 to guns,ot 2ounds. ' de1ormed meta# )a*3et o1 a .38 *a#iber
s#ug 2as re*overed 1rom t,e *or&se. Ia##isti*s tests s,o2ed t,at t,e bu##ets and *artridges ,ad
identi*a# individua# *,ara*teristi*s 2it, t,ose o1 t,e test bu##ets and *artridges. Para11in tests
*ondu*ted on ea*, o1 t,e a&&e##ants, one da6 a1ter t,e in*ident, revea#ed t,at a## 2ere &ositive 1or
gun&o2der residues. +,e sub)e*t 1irearms 2ere a#so *,emi*a##6 eGamined and 1ound &ositive 1or
gun&o2der residue. Ie1ore t,e s,ooting in*ident, a&&e##ants 2ere seen at Nava#esA ,ouse unti#
around -:3/ P.(., 2,en t,e6 #e1t aboard Nava#esA red KJi116L 2it, 'ste##ero driving, 'brio# in t,e
1ront &assenger seat, and Dosdos in t,e ba*3 seat.
4535
'&&e##antsA seating arrangements 2ere
eGa*t#6 t,e same, severa# ,ours #ater, a1ter t,e6 2ere &ursued and *ornered b6 &o#i*e *ars near
IIR%. '&&e##ants admitted t,at t,e6 dro&&ed b6 t,e Nava#es residen*e at around -:// P.(. and
11:// P.(.
+,ese unbro3en *,ain o1 events &rove not on#6 a&&e##antsA identities but a#so t,eir
&arti*i&ation and *o##e*tive res&onsibi#it6 in t,e murder o1 '#e)andro =#ores. +,e6 revea# a unit6
o1 &ur&ose and *on*erted a*tion eviden*ing t,eir *ons&ira*6 to 3i## ,im. 'gainst t,is matriG o1
1a*ts and *ir*umstan*es, a&&e##antsA bare denia#s *annot stand. +,eir stor6 o1 *,asing a red
KJi116L is mere#6 a disingenuous diversion o1 no evidentiar6 va#ue 1or t,e de1ense.
=ina##6, t,e in1ormation 1or murder a##eged trea*,er6 and evident &remeditation. >e note,
t,oug,, t,at t,e tria# *ourt did not state 2,i*, *ir*umstan*e Fua#i1ied t,e 3i##ing into murder.
' revie2 o1 t,e re*ord 2ou#d revea# t,at t,ere 2as no evident &remeditation. +,ere is
evident &remeditation 2,en t,e 1o##o2ing are s,o2n: 8a9 t,e time 2,en t,e a**used determined
to *ommit t,e *rimeH 8b9 an a*t or a*ts mani1est#6 indi*ating t,at t,e a**used ,as *#ung to ,is
determinationH and 8*9 a #a&se o1 time bet2een t,e determination to *ommit t,e *rime and t,e
eGe*ution t,ereo1 su11i*ient to a##o2 ,im to re1#e*t u&on t,e *onseFuen*es o1 ,is a*t.
4505
?vident
&remeditation indi*ates de#iberate &#anning and &re&aration. No2,ere in t,e re*ord is it s,o2n
2,en and ,o2 a&&e##ants &#anned and &re&ared to 3i## t,e vi*tim.
%on*erning trea*,er6, ,o2ever, it 2as s,o2n t,at: 819 t,e means o1 eGe*ution em&#o6ed
gave t,e &erson atta*3ed no o&&ortunit6 to de1end ,imse#1 or reta#iateH and 8.9 t,e means o1
eGe*ution 2as de#iberate#6 or *ons*ious#6 ado&ted.
4555
+,ese t2in reFuisites 2ere adeFuate#6
&roved.
'&&e##ants ,ad su&eriorit6 in numbers and 2ea&ons. +,e vi*tim 2as 2it,out an6 means to
de1end ,imse#1 as no 2ea&on 2as 1ound or even intimated to be in ,is &ossession. +,e vi*tim
2as running a2a6 1rom t,e KJi116L &rior to t,e 3i##ing. +,at ,e 2as 2arned or t,reatened ear#ier
is o1 no moment. ?ven 2,en t,e vi*tim is 2arned o1 danger to ,is &erson, i1 t,e eGe*ution o1 t,e
atta*3 made it im&ossib#e 1or t,e vi*tim to de1end ,imse#1 or to reta#iate, trea*,er6 *an sti## be
a&&re*iated.
4565
+,e vi*tim 2as #6ing &rostrate on t,e ground 2,en ,e 2as de#iberate#6 and
mer*i#ess#6 ridd#ed 2it, bu##ets. +,e 2ea&ons used, t,e number o1 assai#ants, t,e s2i1t and
&#anned manner o1 t,e atta*3, and t,e mu#ti&#e number o1 2ounds in1#i*ted u&on t,e vi*tim a##
demonstrate a determined assau#t 2it, intent to 3i## t,e vi*tim. No doubt t,ere 2as trea*,er6.
!. Criinal Case No. C!"-##&&'
@n t,eir *onvi*tion 1or i##ega# &ossession o1 1irearms, a&&e##ants *ontend t,at t,e ,andguns
and ammunitions a##eged#6 ta3en 1rom t,em b6 t,e &o#i*e o11i*ers 2ere i##ega##6 sei$ed. +,e6
assert t,at t,e &o#i*e ,ad no 2arrant to e11e*t a sear*, and sei$ure, su*, t,at t,ese i##ega##6 sei$ed
1irearms 2ere inadmissib#e as eviden*e, and it 2as error 1or t,e tria# *ourt to admit t,em.
+,ere are eig,t 889 instan*es 2,ere a 2arrant#ess sear*, and sei$ure is va#id. +,e6 are: 819
*onsented sear*,esH
45-5
8.9 as an in*ident to a #a21u# arrestH
4585
839 sear*,es o1 vesse#s and air*ra1t
1or vio#ation o1 immigration, *ustoms, and drug #a2sH
4595
809 sear*,es o1 moving ve,i*#esH
46/5
859
sear*,es o1 automobi#es at borders or *onstru*tive bordersH 869 2,ere t,e &ro,ibited arti*#es are
in K&#ain vie2HL
4615
8-9 sear*,es o1 bui#dings and &remises to en1or*e 1ire, sanitar6, and bui#ding
regu#ationsH and 889 Ksto& and 1ris3L o&erations.
46.5
;n t,is *ase, t,e 2arrant#ess sear*, and sei$ure o1 t,e sub)e*t ,andguns and ammunition is
va#id 1or t2o reasons. ;t 2as a sear*, in*identa# to a #a21u# arrest. ;t 2as made a1ter a 1ata#
s,ooting, and &ursuit o1 a 1ast!moving ve,i*#e see3ing to e#ude &ursuing &o#i*e o11i*ers, and a
more t,an reasonab#e be#ie1 on t,e &art o1 t,e &o#i*e o11i*ers t,at t,e 1#eeing sus&e*ts aboard said
ve,i*#e ,ad )ust engaged in *rimina# a*tivit6. +,e urgent need o1 t,e &o#i*e to ta3e immediate
a*tion in t,e #ig,t o1 t,e 1oregoing eGigen*ies *#ear#6 satis1ies t,e reFuirements 1or 2arrant#ess
arrests under t,e Ru#es o1 %ourt.
4635
(oreover, 2,en *aug,t in lagrante deli!to 2it, 1irearms and
ammunition 2,i*, t,e6 2ere not aut,ori$ed to *arr6, a&&e##ants 2ere a*tua##6 vio#ating P.D. No.
1866, anot,er ground 1or va#id arrest under t,e Ru#es.
4605
'&&e##ants 1urt,er *ontend t,at t,e tria# *ourt erred in *onvi*ting a&&e##ants 'ste##ero and
Dosdos o1 i##ega# &ossession o1 1irearms. +,e6 &oint out t,at t,e .38 *a#iber revo#ver 2as
re*overed 1rom a&&e##ant 'brio#, 2,o as a &o#i*eman 2as aut,ori$ed to *arr6 and &ossess said
1irearm, as eviden*ed b6 ,is (emorandum Re*ei&t 8(R9, 2,i*, ,ad Knot been re*a##ed,
*an*e##ed or revo3ed unti# t,e time o1 t,e tria# o1 t,ese *ases.L '&&e##ants *#aim t,at t,e t2o .05
*a#iber &isto#s *ou#d ,ave been #e1t in t,e ve,i*#e b6 PNP &ersonne# assigned at IIR%,
*onsidering t,at t,e red KJi116L 2as genera##6 used as a servi*e ve,i*#e b6 IIR%
&ersonne#. +,e6 a#so argue t,at t,e &rose*ution 1ai#ed to &rove a&&e##antsA o2ners,i&, *ontro#,
and &ossession o1 t,e .05 *a#iber &isto#s, *onsidering t,at a&&e##ants 2ere siG meters a2a6 1rom
t,e KJi116L 2,en said ,andguns 2ere a##eged#6 1ound.
+o sustain a *onvi*tion 1or vio#ation o1 P.D. No. 1866, t,e &rose*ution must &rove t2o
e#ements o1 t,e o11ense: 819 t,e eGisten*e o1 t,e sub)e*t 1irearmH 8.9 t,e 1a*t t,at t,e a**used 2,o
o2ned or &ossessed t,e 1irearm does not ,ave t,e *orres&onding #i*ense or &ermit to &ossess it.
4655
+,ese t,e &rose*ution did. ;t &resented a .38 *a#iber revo#ver 2it, seria# number P@8005, a .
05 *a#iber &isto# 2it, seria# number PG@ 135/6 Para @rdinan*e, and a .05 *a#iber &isto# 2it,
seria# number 5.069. +,e .38 *a#iber ,andgun 2as re*overed 1rom a&&e##ant 'brio#, 2,i#e t,e
t2o .05 *a#iber automati*s 2ere 1ound and sei$ed 1rom under t,e 1ront &assenger seat o1
a&&e##antsA ve,i*#e. "P@0 'Fui##es =amoso o1 t,e %ebu %it6 PNP (etro&o#itan Distri*t
%ommandAs =irearms and ?G&#osive Bnit testi1ied t,at a&&e##ants 2ere not #isted as #i*ensed
1irearm o2ners in %ebu %it6.
4665
+,e &rose*ution a#so &resented a *erti1i*ation 1rom PE"enior
;ns&e*tor ?d2in RoFue o1 t,e =irearms and ?G&#osives Division o1 PNP :eadFuarters at %am&
%rame, Que$on %it6 t,at a&&e##ant 'brio# is not #i*ensed to ,o#d an6 1irearmH t,at t,e .05 *a#iber
&isto#s 2ere un#i*ensedH and t,at a *erti1i*ation 1rom t,e PNP =irearms and ?G&#osives @11i*e
attesting t,at a &erson is not a #i*ensee o1 an6 1irearm, &roves be6ond reasonab#e doubt t,e
se*ond e#ement o1 i##ega# &ossession o1 1irearm.
46-5
'brio# insists t,at ,e ,ad a va#id (R aut,ori$ing ,im to *arr6 t,e .38 revo#ver. >e agree
2it, t,e observation o1 t,e tria# *ourt t,at:
+,e *#aim o1 'brio# t,at .38 *a#iber 2as issued to ,im, as eviden*ed b6 t,e
*orres&onding re*ei&t 8(R9, is o1 no moment. >,i#e an (R is an aut,orit6 o1 'brio#
to &ossess t,e government 1irearm t,at 2as issued to ,im, 2,en ,e 2as *,arged and
detained at IIR% 1or an ear#ier *ase o1 murder, ot,er t,an t,e *ase at bar, ,e 2as
a#read6 t,en at t,at moment a detained &risoner and t,ere1ore, 8un9aut,ori$ed to *arr6
a 1irearm. ' mi#itar6 man or a member o1 t,e PNP 2,o *ommits a *rime, is
immediate#6 disarmed u&on ,is arrest and stri&&ed o1 a## t,e rig,ts and &rivi#eges t,at
go 2it, t,e 1un*tion o1 ,is o11i*e, and t,is in*#udes, in t,e *ase o1 'brio#, ,is
(R. +,us, 2,en ,e s,ot '#e)andro =#ores 2it, ,is .38 *a#iber revo#ver, t,is 1irearm
2as a#read6 unaut,ori$ed and its use and &ossession i##ega#.
4685
?ven i1 'brio#As (R 2as va#id, said aut,ori$ation 2as #imited on#6 to t,e .38 *a#iber
revo#ver and not t,e t2o .05 *a#iber automati* &isto#s 1ound under t,e 1ront &assenger seat o1 t,e
KJi116.L '&&e##ants 2ere sti## in t,e un#a21u# &ossession o1 t,e .05 *a#iber &isto#s. Bnder P.D. No.
1866, &ossession is not #imited to a*tua# &ossession.
4695
;n t,is *ase, a&&e##ants ,ad *ontro# over
t,e &isto#s. +,e6 2ere a## #iab#e sin*e *ons&ira*6 2as estab#is,ed and t,e a*t o1 one is t,e a*t o1
a##.
4-/5
'&&e##ants *#aim t,at t,e6 2ere siG meters a2a6 1rom t,e KJi116L 2,en it 2as sear*,ed and
t,e t2o .05 *a#iber &isto#s 2ere sei$ed. +,e6 suggest t,at t,e &o#i*emen 2,o sear*,ed t,e
ve,i*#e *ou#d ,ave &#anted said 1irearms. +,e tria# *ourt 1ound t,at t,e6 2ere in 1a*t on#6 one
meter a2a6 1rom t,e ve,i*#e. =indings o1 1a*t o1 t,e tria# *ourt, 2,en su&&orted b6 t,e eviden*e
on re*ord, are binding and *on*#usive u&on a&&e##ate *ourts.
4-15
'## to#d, on t,e *,arge o1 i##ega# &ossession o1 1irearms, no reversib#e error 2as *ommitted
b6 t,e tria# *ourt 2,en it 1ound a&&e##ants gui#t6 be6ond reasonab#e doubt.
+,e @11i*e o1 t,e "o#i*itor Genera# re*ommends t,at a#t,oug, a&&e##ants 2ere *,arged 2it,
and *onvi*ted o1 t2o se&arate o11enses o1 murder and vio#ation o1 P.D. No. 1866, R.'. No. 8.90,
2,i*, amended said de*ree, s,ou#d be a&&#ied to a&&e##ants retroa*tive#6, *iting 9eople v.
*olina) .9. "%R' -0., --9 819989 inter&reting R.'. No. 8.90.
>e agree. >e ru#ed in *olina t,at 2it, t,e &assage o1 R.'. No. 8.90 on June 6, 199-, t,e
use o1 an un#i*ensed 1irearm in murder or ,omi*ide is not a se&arate *rime, but mere#6 a s&e*ia#
aggravating *ir*umstan*e. +,is 2as re*ent#6 reiterated in 9eople v. Castillo) G.R. Nos. 13159.!
93, =ebruar6 15, .///.
4-.5
'&&e##ants are t,us gui#t6 on#6 o1 murder 2it, t,e s&e*ia# aggravating
*ir*umstan*e o1 use o1 un#i*ensed 1irearms. +,e im&osition o1 t,e &ena#t6 o1 re!lusion
perpetua*annot ,o2ever be modi1ied sin*e t,e murder too3 &#a*e be1ore t,e e11e*tivit6 o1 R.'.
No. -659.
' 1ina# 2ord on t,e damages. ;n addition to t,e a2ard o1 P5/,/// as indemnit6 e7 deli!to,
t,e tria# *ourt a2arded P3/,/// in a*tua# damages, Kre&resenting a reasonab#e amount 1or t,e
emba#ming, vigi#, 2a3e and buria# eG&enses,L and P3/,/// as attorne6As 1ees. +o be entit#ed to
a*tua# damages, it is ne*essar6 to &rove t,e a*tua# amount o1 #oss 2it, a reasonab#e degree o1
*ertaint6, &remised u&on *om&etent &roo1, and on t,e best eviden*e obtainab#e b6 t,e in)ured
&art6.
4-35
No su*, eviden*e 2as o11ered. +,e a2ard o1 a*tua# damages must, t,ere1ore, be
de#eted. :o2ever, tem&erate damages ma6 be a2arded sin*e t,e 1ami#6 o1 t,e vi*tim ,as
demonstrab#6 s&ent 1or t,e 2a3e, 1unera# and buria# arrangements. +,e amount o1 P./,///
s,ou#d su11i*e as tem&erate damages. ;n addition, 2e 1ind an a2ard o1 eGem&#ar6 damages in
order, &ursuant to 'rti*#e ..3/ o1 t,e %ivi# %ode.
4-05
+,e 3i##ing 2as attended b6 t,e s&e*ia#
aggravating *ir*umstan*e o1 use o1 un#i*ensed 1irearms. (oreover, t,e &ub#i* good demands
t,at detained &risoners s,ou#d not abuse t,eir status as Ktrustees.L :ad t,e &o#i*e been
unsu**ess1u# in t,eir &ursuit o1 a&&e##ants, t,e #atter 2ou#d ,ave used t,e IIR% as s,e#ter and as
an a#ibi t,at t,e6 *ou#d not ,ave *ommitted t,e *rime sin*e t,e6 2ere t,en in detention. +,us,
2e 1ind an a2ard o1 P1/,/// as eGem&#ar6 damages in order. '**ording#6, t,e a2ard o1
attorne6As 1ees is sustained.
4-55
3HERE4ORE, t,e assai#ed De*ision o1 t,e Regiona# +ria# %ourt o1 %ebu %it6, Iran*, 1/,
in %rimina# %ases Nos. %IB!3/35/ and %IB!33660 is ,ereb6 (@D;=;?D. '&&e##ants '#bert
'brio#, (a*ario 'ste##ero, and Januario Dosdos are ,ereb6 1ound GB;7+ o1 murder, Fua#i1ied
b6 trea*,er6, 2it, t,e s&e*ia# aggravating *ir*umstan*e o1 use o1 un#i*ensed 1irearms and are
,ereb6 senten*ed to su11er t,e &ena#t6 o1 re!lusion perpetua 2it, t,e a**essor6 &ena#ties
&rovided 1or b6 #a2. '&&e##ants 'brio#, 'ste##ero, and Dosdos are a#so ordered to &a6, )oint#6
and severa##6, t,e ,eirs o1 '#e)andro =#ores t,e sum o1 P5/,/// as deat, indemnit6, P./,/// as
tem&erate damages, P1/,/// as eGem&#ar6 damages, and P3/,/// as attorne6As 1ees, as 2e## as
t,e *osts.
SO OR5ERE5.
2ellosillo) 5Chairman6) *endo(a) 2uena) and :e Leon) Jr.) JJ.) *on*ur.
<epublic o' the "hilippines
SU6REME COURT
&anila
7# 8;#C
G.R. No. 21967 Ju8, 9, 1990
$N THE MATTER O" THE 6ET$T$ON "OR HABEAS COR6US O" ROBERTO UM$L, ROLAN3O
3URAL n! RENATO %$LLANUE%A. MANOL$TA O. UM$L, n! N$CANOR 6. 3URAL, "EL$C$TAS
%. SESE, petitioners,
vs.
"$3EL %. RAMOS, MAJ. GEN. RENATO 3E %$LLA, BR$G. GEN. RAMON MONTANO, BR$G. GEN.
ALE7AN3ER AGU$RRE, respondents.
G.R. No(. 25921-22 Ju8, 9, 1990
AMEL$A RO<UE n! W$L"RE3O BUENAOBRA, petitioners,
vs.
GEN. RENATO 3E %$LLA n! GEN. RAMON MONTANO, respondents.
G.R. No(. 25923-25 Ju8, 9, 1990
$N THE MATTER O" THE 6ET$T$ON "OR HABEAS COR6US O" ATT#. 3OM$NGO T.
ANONUE%O n! RAMON CAS$6LE. 3OM$NGO T. ANONUE%O n! RAMON
CAS$6LE, petitioners,
vs.
HON. "$3EL %. RAMOS, GEN. RENATO S. 3E %$LLA, COL. E%AR$STO CAR$NO, LT. COL. RE7
3. 6$A3, TJSGT. CONRA3O 3E TORRES, SJSGT. ARNOL3 3UR$AN, n! Co..n!&n- O00&)e/,
6C-$N6 3e+en+&on Cen+e/, C.* C/.e, <ueHon C&+,, respondents.
G.R. No. 23162 Ju8, 9, 1990
$N THE MATTER O" THE A66L$CAT$ON "OR HABEAS COR6US O" %$C;# A. OCA#A AN3
3ANN# R$%ERA. %$RG$L$O A. OCA#A, petitioner,
vs.
BR$G. GEN. ALE7AN3ER AGU$RRE, COL. HERCULES CATALUNA, COL. NESTOR
MAR$ANO, respondents.
G.R. No. 29727 Ju8, 9, 1990
$N THE MATTER O" A66L$CAT$ON "OR HABEAS COR6US O"> 3EOGRAC$AS
ES6$R$TU, petitioner,
vs.
BR$G. GEN. AL"RE3O S. L$M, COL. R$CAR3O RE#ES, respondents.
G.R. No. 26332 Ju8, 9, 1990
$N THE MATTER O" THE 6ET$T$ON "OR HABEAS COR6US O" NARC$SO B. NA1ARENO.
AL"RE3O NA1ARENO, petitioner,
vs.
THE STAT$ON COMMAN3ER O" THE MUNT$NGLU6A 6OL$CE STAT$ON, Mun+&n-8u*, Me+/o
Mn&8, 6JSGT. JAC$NTO ME3$NA, 6JSGT. ELA3$O TAGLE, 6JSGT. LE%$ SOLE3A3, n! 6JSGT.
MAURO AROJA3O,respondents.
Efren ). Mercado for petitioners in G.+. 9o. <>S?.
+icardo ,. 6almonte for petitioners in G.+. 9os. <T><-<=.
+amon S. Esguerra- /arbara Anne ,. Migallos and Agripino G. Morga for petitioners in G.+. 9os.
<T><@-<T.
Efren ). Mercado for petitioner in G.+. 9o. <@S=.
/anzuela- Flores- Miralles- +aneses- S'- 5a&uio R Association for petitioner in G.+. 9o. <>?=?.
.osefina G. ,ampbell-,astillo for petitioners in G.+. 9o. <S@@=.
5he Solicitor General for the respondents.
6ER CUR$AM>
+he are ei)ht 2J3 petitioners 'or habeas corpus 'iled be'ore the Court, (hich have been consolidated
because o' the si$ilarity o' issues raised, prayin) 'or the issuance o' the (rit o' habeas corpus,
orderin) the respective respondents to produce the bodies o' the persons na$ed therein and to
e9plain (hy they should not be set at liberty (ithout 'urther delay.
:n their respective <eturns, the respondents uni'or$ly assert that the privile)e o' the (rit o' habeas
corpus is not available to the petitioners as they have been legall' arrested and are detained by
virtue o' %alid informations 'iled in court a)ainst the$.
+he petitioners counter that their detention is unla('ul as their arrests (ere $ade without
warrant and, that no preliminar' in%estigation (as 'irst conducted, so that the in'or$ations 'iled
a)ainst the$ are null and void.
+he Court has care'ully revie(ed the contentions o' the parties in their respective pleadin)s, and it
'inds that the persons detained have not been ille)ally arrested nor arbitrarily deprived o' their
constitutional ri)ht to liberty, and that the circu$stances attendin) these cases do not (arrant their
release on habeas corpus.
+he arrest o' a person (ithout a (arrant o' arrest or previous co$plaint is reco)nized in la(. +he
occasions or instances (hen such an arrest $ay be e''ected are clearly spelled out in Section /,
<ule 11 o' the <ules o' Court, as a$ended, (hich provides*
Sec. /. Arrest without warrant= when lawful. H ; peace o''icer or a private person
$ay, (ithout a (arrant, arrest a person*
2a3 When, in his presence, the person to be arrested has co$$itted, is actually
co$$ittin), or is atte$ptin) to co$$it an o''ense=
2b3 When an o''ense has in 'act >ust been co$$itted, and he has personal
kno(led)e o' 'acts indicatin) that the person to be arrested has co$$itted it= and
2c3 When the person to be arrested is a prisoner (ho has escaped 'ro$ a penal
establish$ent or place (here he is servin) 'inal >ud)$ent or te$porarily con'ined
(hile his case is pendin), or has escaped (hile bein) trans'erred 'ro$ one
con'ine$ent to another.
:n cases 'allin) under para)raphs 2a3 and 2b3 hereo', the person arrested (ithout a
(arrant shall be 'orth(ith delivered to the nearest police station or >ail, and he shall
be proceeded a)ainst in accordance (ith <ule 11!, Section 0.
;n arrest (ithout a (arrant o' arrest, under Section / para)raphs 2a3 and 2b3 o' <ule 11 o' the
<ules o' Court, as a$ended, is >usti'ied (hen the person arrested is cau)ht in flagranti delicto, %iz.,
in the act o' co$$ittin) an o''ense= or (hen an o''ense has >ust been co$$itted and the person
$akin) the arrest has personal kno(led)e o' the 'acts indicatin) that the person arrested has
co$$itted it. +he rationale behind la('ul arrests, (ithout (arrant, (as stated by this Court in the
case o' 0eople %s. Hagui Malasugui
1
thus*
+o hold that no cri$inal can, in any case, be arrested and searched 'or the evidence
and tokens o' his cri$e (ithout a (arrant, (ould be to leave society, to a lar)e
e9tent, at the $ercy o' the shre(dest, the $ost e9pert, and the $ost depraved o'
cri$inals, 'acilitatin) their escape in $any instances.
+he record o' the instant cases (ould sho( that the persons in (hose behal' these petitions
'or habeas corpushave been 'iled, had 'reshly co$$itted or (ere actually co$$ittin) an o''ense,
(hen apprehended, so that their arrests (ithout a (arrant (ere clearly >usti'ied, and that they are,
'urther, detained by virtue o' valid in'or$ations 'iled a)ainst the$ in court.
; brie' narration o' the 'acts and events surroundin) each o' the ei)ht 2J3 petitions is in order.
:
:n @.<. #o. J1/60 2A$il vs. <a$os3, the record sho(s that, on 1 February 19JJ, the <e)ional
:ntelli)ence 6perations Anit o' the Capital Co$$and 2<:6A-C;"C6&3 received con'idential
in'or$ation about a $e$ber o' the #"; Sparro( Anit 2liDuidation sDuad3 bein) treated 'or a )unshot
(ound at the St. ;)nes ,ospital in <oosevelt ;venue, Luezon City. Apon veri'ication, it (as 'ound
that the (ounded person, (ho (as listed in the hospital records as <onnie Javelon, is actually
<olando Cural, a $e$ber o' the #"; liDuidation sDuad, responsible 'or the killin) o' t(o 2!3
C;"C6& soldiers the day be'ore, or on 1 January 19JJ, in &acaninin) Street, 8a)on) 8arrio,
Caloocan City. :n vie( o' this veri'ication, <olando Cural (as trans'erred to the <e)ional &edical
Services o' the C;"C6&, 'or security reasons. While con'ined thereat, or on 4 February 19JJ,
<olando Cural (as positively identi'ied by eye(itnesses as the )un$an (ho (ent on top o' the hood
o' the C;"C6& $obile patrol car, and 'ired at the t(o 2!3 C;"C6& soldiers seated inside the car
identi'ied as +BS)t. Carlos "abon and C:C <enato &anli)ot.
;s a conseDuence o' this positive identi'ication, <olando Cural (as re'erred to the Caloocan City
Fiscal (ho conducted an inDuest and therea'ter 'iled (ith the <e)ional +rial Court o' Caloocan City
an in'or$ation char)in) <olando Cural alias <onnie Javelon (ith the cri$e o' ECouble &urder (ith
;ssault Apon ;)ents o' "ersons in ;uthority.E +he case (as docketed therein as Cri$inal Case #o.
C-511! and no bail (as reco$$ended. 6n 1/ February 19JJ, the in'or$ation (as a$ended to
include, as de'endant, 8ernardo :tucal, Jr. (ho, at the 'ilin) o' the ori)inal in'or$ation, (as still
unidenti'ied.
&ean(hile, on 6 February 19JJ, a petition 'or habeas corpus (as 'iled (ith this Court on behal'
o' +oberto ;mil,+olando 4ural, and +enato 6illanue%a. +he Court issued the (rit o' habeas
corpus on 9 February 19JJ and the respondents 'iled a <eturn o' the Writ on 1! February 19JJ.
+herea'ter, the parties (ere heard on 1/ February 19JJ.
6n !6 February 19JJ, ho(ever, +oberto ;mil and +enato 6illanue%a posted bail be'ore the
<e)ional +rial Court o' "asay City (here char)es 'or violation o' the ;nti-Subversion ;ct had been
'iled a)ainst the$, and they (ere accordin)ly released. +he petition 'or habeas corpus, inso'ar as
A$il and ?illanueva are concerned, is no( $oot and acade$ic and is accordin)ly dis$issed, since
the (rit o' habeas corpus does not lie in 'avor o' an accused in a cri$inal case (ho has been
released on bail.
2
;s to +olando 4ural, it clearly appears that he (as not arrested (hile in the act o' shootin) the t(o
2!3 C;"C6& soldiers a'ore$entioned. #or (as he arrested >ust a'ter the co$$ission o' the said
o''ense 'or his arrest ca$e a da' after the said shootin) incident. See$in)ly, his arrest (ithout
(arrant is un>usti'ied.
,o(ever, <olando Cural (as arrested 'or bein) a $e$ber o' the #e( "eoples ;r$y 2#";3, an
outla(ed subversive or)anization. Subversion bein) a continuing offense, the arrest o' <olando
Cural (ithout (arrant is >usti'ied as it can be said that he (as co$$ittin) an o''ense (hen arrested.
+he cri$es o' rebellion, subversion, conspiracy or proposal to co$$it such cri$es, and cri$es or
o''enses co$$itted in 'urtherance thereo' or in connection there(ith constitute direct assaults
a)ainst the State and are in the nature o' continuing crimes. ;s stated by the Court in an earlier
case*
Fro$ the 'acts as above-narrated, the clai$ o' the petitioners that they (ere initially
arrested ille)ally is, there'ore, (ithout basis in la( and in 'act. +he cri$es o'
insurrection or rebellion, subversion, conspiracy or proposal to co$$it such cri$es,
and other cri$es and o''enses co$$itted in the 'urtherance, on the occasion thereo',
or incident thereto, or in connection there(ith under "residential "rocla$ation #o.
!54/, are all in the nature o' continuin) o''enses (hich set the$ apart 'ro$ the
co$$on o''enses, aside 'ro$ their essentially involvin) a $assive conspiracy o'
nation(ide $a)nitude. Clearly then, the arrest o' the herein detainees (as (ell
(ithin the bounds o' the la( and e9istin) >urisprudence in our >urisdiction.
!. +he arrest o' persons involved in the rebellion (hether as its 'i)htin) ar$ed
ele$ents, or 'or co$$ittin) non-violent acts but in 'urtherance o' the rebellion, is
$ore an act o' capturin) the$ in the course o' an ar$ed con'lict, to Duell the
rebellion, than 'or the purpose o' i$$ediately prosecutin) the$ in court 'or a
statutory o''ense. +he arrest, there'ore, need not 'ollo( the usual procedure in the
prosecution o' o''enses (hich reDuires the deter$ination by a >ud)e o' the e9istence
o' probable cause be'ore the issuance o' a >udicial (arrant o' arrest and the )rantin)
o' bail i' the o''ense is bailable. 6bviously, the absence o' a >udicial (arrant is no
le)al i$pedi$ent to arrestin) or capturin) persons co$$ittin) overt acts o' violence
a)ainst )overn$ent 'orces, or any other $ilder acts but eDually in pursuance o' the
rebellious $ove$ent. +he arrest or capture is thus i$pelled by the e9i)encies o' the
situation that involves the very survival o' society and its )overn$ent and duly
constituted authorities. :' killin) and other acts o' violence a)ainst the rebels 'ind
>usti'ication in the e9i)encies o' ar$ed hostilities (hich is o' the essence o' (a)in) a
rebellion or insurrection, $ost assuredly so in case o' invasion, $erely seizin) their
persons and detainin) the$ (hile any o' these contin)encies continues cannot be
less >usti'ied. . . .
3
+he record, $oreover, sho(s that the cri$inal case 'iled a)ainst +olando 4ural and /ernardo
3tucal, .r. 'or ECouble &urder, etc.E (as tried in the court belo( and at the conclusion thereo', or on
10 ;u)ust 19JJ, <olando Cural and 8ernardo :tucal, Jr. (ere 'ound )uilty o' the char)e and
sentenced accordin)ly. <olando Cural is no( servin) the sentence i$posed upon hi$ by the trial
court. +hus, the (rit o' habeas corpus is no lon)er available to hi$. For, as held in the early case
o' ;.S. %s. *ilson*
5
:n this case, (hatever $ay be said about the $anner o' his arrest, the 'act re$ains
that the de'endant (as actually in court in the custody o' the la( on &arch !9, (hen
a co$plaint su''icient in 'or$ and substance (as read to hi$. +o this he pleaded not
)uilty. +he trial 'ollo(ed, in (hich, and in the >ud)$ent o' )uilty pronounced by the
court, (e 'ind no error. Whether, i' there (ere irre)ularities in brin)in) hi$ personally
be'ore the court, he could have been released on a (rit o' habeas corpus or no( has
a civil action 'or da$a)es a)ainst the person (ho arrested hi$ (e need not inDuire.
:t is enou)h to say that such irre)ularities are not su''icient to set aside a valid
>ud)$ent rendered upon a su''icient co$plaint and a'ter a trial 'ree 'ro$ error.
::
:n @.<. #os. J4/J1-J! 2<oDue vs. Ce ?illa3, the arrest o' Amelia +o&ue and *ilfredo /uenaobra,
(ithout (arrant, is also >usti'ied. When apprehended at the house o' <enato Constantino in &arikina
,ei)hts, &arikina, &etro &anila, Wil'redo 8uenaobra admitted that he (as an #"; courier and he
had (ith hi$ letters to <enato Constantino and other $e$bers o' the rebel )roup. ;$elia <oDue,
upon the other hand, (as a $e$ber o' the #ational Anited Front Co$$ission, in char)e o' 'inance,
and admitted o(nership o' subversive docu$ents 'ound in the house o' her sister in Caloocan City.
She (as also in possession o' a$$unition and a 'ra)$entation )renade 'or (hich she had no per$it
or authority to possess.
+he record o' these t(o 2!3 cases sho(s that on !0 June 19JJ, one <o)elio <a$os y :banes, a
$e$ber o' the #";, (ho had surrendered to the $ilitary authorities, told $ilitary a)ents about the
operations o' the Co$$unist "arty o' the "hilippines 2C""3 and the #e( "eoples ;r$y 2#";3 in
&etro &anila. ,e identi'ied so$e o' his 'or$er co$rades as E.a &on)E, a sta'' $e$ber o' the
Co$$unications and +ransportation 8ureau= E.a #eliaE, a sta'' $e$ber in char)e o' 'inance= E.a
&illerE, an #"; courier 'ro$ Sorso)on and %opez, Luezon= E.a +edE, and E.a +otoyE. ,e also
pointed to a certain house occupied by <enato Constantino located in the ?illaluz Co$pound,
&olave St., &arikina ,ei)hts, &arikina, &etro &anila, (hich is used as a sa'ehouse o' the #ational
Anited Front Co$$ission 2#AFC3 o' the C""-#";.
:n vie( o' these revelations, the Constantino house (as placed under $ilitary surveillance and on 1!
;u)ust 19JJ, pursuant to a search (arrant issued by Jud)e 7utropio &i)rino o' the <e)ional +rial
Court o' "asi), a search o' the house (as conducted at about /*55 o1clock in the a'ternoon, by a
co$bined tea$ o' the Cri$inal :nvesti)ation Service, #ational Capital Cistrict 2C:S-#CC3 and the
Constabulary Security @roup 2CS@3. :n the course o' the search, the 'ollo(in) articles (ere 'ound
and taken under proper receipt*
a3 6ne 213 Colt &16;1 lon) ri'le (ith de'aced serial nu$ber=
b3 6ne 213 Cal. .J5 ;C+B9$$ &odel "".BJ S#* !65/00 M !65/00J=
c3 +(o 2!3 'ra)$entation hand )renades=
d3 Fi'ty-si9 2/63 live a$$unition 'or Cal. /./6 $$=
e3 Five 2/3 live a$$unition 'or Cal. .J5=
'3 6ne 213 :C6& ?,F F& <adio +ransciever S#* 1495
)3 6ne 213 <e)ulated po(er supply !!5? ;C=
h3 6ne 213 ;ntennae 2ad>ustable3=
i3 6ne 213 Speaker (ith cord ;%7S;<=
>3 ?olu$inous Subversive docu$ents.
When con'ronted, <enato Constatino could not produce any per$it or authority to possess the
'irear$s, a$$unition, radio and other co$$unications eDuip$ent. ,ence, he (as brou)ht to the
C:S ,eadDuarters 'or investi)ation. When Duestioned, he re'used to )ive a (ritten state$ent,
althou)h he admitted that he (as a sta'' $e$ber o' the e9ecutive co$$ittee o' the #AFC and a
rankin) $e$ber o' the :nternational Cepart$ent o' the Co$$unist "arty o' the "hilippines 2C""3.
;t about J*55 o1clock in the evenin) o' the sa$e day 21! ;u)ust 19JJ3, Wil'redo 8uenaobra arrived
at the house o' <enato Constantino in the ?illaluz Co$pound. When accosted, he
readily admitted to the $ilitary a)ents that he is a re)ular $e$ber o' the C""B#"; and that he (ent
to the place to deliver letters to E.a &on)E, re'errin) to <enato Constatino, and other $e$bers o'
the rebel )roup. 6n 'urther Duestionin), he also ad$itted that he is kno(n as E.a &illerE and that he
(as 'ro$ 8aran)ay San "edro, %opez, Luezon. ;$on) the ite$s taken 'ro$ hi$ (ere the 'ollo(in)*
213 ,and(ritten letter addressed to E.a 8in) M Co. 'ro$ ; M Co.E dated ;u)ust 11,
19JJ=
2!3 ,and(ritten letter addressed to E<6C 'ro$ ?:C 2Schell datre3E dated ;u)ust 11,
19JJ=
23 ,and(ritten letter addressed to ESuzieE 'ro$ E?icE, dated ;u)ust 11, 19JJ.
;lso 'ound 8uenaobra1s possession (as a piece o' paper containin) a (ritten but >u$bled telephone
nu$ber o' Florida &. <oDue, sister o' ;$elia <oDue alias E.a #eliaE, at 69 @eroni$o St., Caloocan
City. ;ctin) on the lead provided as to the (hereabouts o' Amelia +o&ue, the $ilitary a)ents (ent to
the )iven address the ne9t day 21 ;u)ust 19JJ3. +hey arrived at the place at about 11*55 o1clock in
the $ornin). ;'ter identi'yin) the$selves as $ilitary a)ents and a'ter seekin) per$ission to search
the place, (hich (as )ranted, the $ilitary a)ents conducted a search in the presence o' the
occupants o' the house and the baran)ay captain o' the place, one Jesus C. 6lba.
+he $ilitary a)ents 'ound the place to be another sa'ehouse o' the #AFCBC"". +hey 'ound led)ers,
>ournals, vouchers, bank deposit books, 'olders, co$puter diskettes, and subversive docu$ents as
(ell as live a$$unition 'or a .J S"% Winchester, 11 rounds o' live a$$unition 'or a cal. .4/, 19
rounds o' live a$$unition 'or an &16 <i'le, and a 'ra)$entation )renade. ;s a result, ;$elia <oDue
and the other occupants o' the house (ere brou)ht to the "C-C:S ,eadDuarters at Ca$p Cra$e,
Luezon City, 'or investi)ation. ;$elia <oDue admitted to the investi)ators that the volu$inous
docu$ents belon)ed to her and that the other occupants o' the house had no kno(led)e o' the$. ;s
a result, the said other occupants o' the house (ere released 'ro$ custody.
6n 1/ ;u)ust 19JJ, ;$elia <oDue (as brou)ht to the Caloocan City Fiscal 'or inDuest a'ter (hich
an in'or$ation char)in) her (ith violation o' "C 1J66 (as 'iled (ith the <e)ional +rial Court o'
Caloocan City. +he case is docketed therein as Cri$inal Case #o. C-1196. ;nother in'or$ation 'or
violation o' the ;nti-Subversion ;ct (as 'iled a)ainst ;$elia <oDue be'ore the &etropolitan +rial
Court o' Caloocan City, (hich is docketed therein as Cri$inal Case #o. C-1/54/J.
;n in'or$ation 'or violation o' the ;nti-Subversion ;ct (as 'iled a)ainst *ilfredo /uenaobra be'ore
the &etropolitan +rial Court o' &arikina, &etro &anila. +he case is docketed therein as Cri$inal
Case #o. !01/. 8ail (as set at "4,555.55.
6n !4 ;u)ust 19JJ, a petition 'or habeas corpus (as 'iled be'ore this Court on behal' o' ;$elia
<oDue and Wil'redo 8uenaobra. ;t the hearin) o' the case, ho(ever, Wil'redo 8uenaobra
$ani'ested his desire to stay in the "C-:#" Stockade at Ca$p Cra$e, Luezon City. ;ccordin), the
petition 'or habeas corpus 'iled on his behal' is no( $oot and acade$ic. 6nly the petition o' ;$elia
<oDue re$ains 'or resolution.
+he contention o' respondents that petitioners <oDue and 8uenaobra are o''icers andBor $e$bers
o' the #ational Anited Front Co$$ission 2#AFC3 o' the C"" (as not controverted or traversed by
said petitioners. +he contention $ust be dee$ed ad$itted.
9
;s o''icers andBor $e$bers o' the #AFC-
C"", their arrest, (ithout (arrant, (as >usti'ied 'or the sa$e reasons earlier stated %is-a-%is +olando
4ural. +he arrest (ithout (arrant o' <oDue (as additionally >usti'ied as she (as, at the ti$e o'
apprehension, in possession o' a$$unitions (ithout license to possess the$.
:::
:n @.<. #os. J4/J-J4 2;nonuevo vs. <a$os3, the arrest o' 4omingo Anonue%o and +amon
,asiple, (ithout (arrant, is also >usti'ied under the rules. 8oth are ad$ittedly $e$bers o' the
standin) co$$ittee o' the #AFC and, (hen apprehended in the house o' <enato Constatino, they
had a ba) containin) subversive $aterials, and both carried 'irear$s and a$$unition 'or (hich they
had no license to possess or carry.
+he record o' these t(o 2!3 cases sho(s that at about 0*5 o1clock in the evenin) o' 1 ;u)ust 19JJ,
Co$in)o +. ;nonuevo and <a$on Casiple arrived at the house o' <enato Constatino at &arikina
,ei)hts, &arikina, (hich (as still under surveillance by $ilitary a)ents. +he $ilitary a)ents noticed
bul)in) ob>ects on their (aist lines. When 'risked, the a)ents 'ound the$ to be loaded )uns.
;nonuevo and Casiple (ere asked to sho( their per$it or license to possess or carry 'irear$s and
a$$unition, but they could not produce any. ,ence, they (ere brou)ht to "C ,eadDuarters 'or
investi)ation. Found in their possession (ere the 'ollo(in) articles*
a3 ?olu$inous subversive docu$ents
b3 6ne 213 Cal. 0.6/ &6C J !C "istol S#* 55141! (ith one 213 $a)azine 'or Cal.
0.6/ containin) ten 2153 live a$$unition o' sa$e caliber=
c3 6ne 213 Cal. 0.6/ "ietro 8arreta S#= ;1JJ6J last di)it ta$pered (ith one 213
$a)azine containin) 'ive 2/3 live a$$unition o' sa$e caliber.
;t the "C Stockade, Co$in)o ;nonuevo (as identi'ied as E.a +edE, and <a$on Casiple as E.a
+otoyE o' the C"", by their co$rades (ho had previously surrendered to the $ilitary.
6n 1/ ;u)ust 19JJ, the record o' the investi)ation and other docu$entary evidence (ere 'or(arded
to the "rovincial Fiscal at "asi), &etro &anila, (ho conducted an inDuest, a'ter (hich Co$in)o
;nonuevo and <a$on Casiple (ere char)ed (ith violation o' "residential Cecree #o. 1J66 be'ore
the <e)ional +rial Court o' "asi), &etro &anila. +he cases are docketed therein as Cri$inal Cases
#os. 04J6 ad 04J0, respectively. #o bail (as reco$$ended.
6n !4 ;u)ust 19JJ, a petition 'or habeas corpus (as 'iled (ith this Court on behal' o' Co$in)o
;nonuevo and <a$on Casiple, alle)in) that the said ;nonuevo and Casiple (ere unla('ully
arrested (ithout a (arrant and that the in'or$ations 'iled a)ainst the$ are null and void 'or havin)
been 'iled (ithout prior hearin) and preli$inary investi)ation. 6n 5 ;u)ust 19JJ, the Court issued
the (rit o' habeas corpus, and a'ter the respondents had 'iled a <eturn o' the Writ, the parties (ere
heard.
+he petitioners1 2;nonuevo and Casiple3 clai$ that they (ere unla('ully arrested because there (as
no previous (arrant o' arrest, is (ithout $erit +he record sho(s that Co$in)o ;nonuevo and
<a$on Casiple (ere carryin) unlicensed 'irear$s and a$$unition in their person (hen they (ere
apprehended.
+here is also no $erit in the contention that the in'or$ations 'iled a)ainst the$ are null and void 'or
(ant o' a preli$inary investi)ation. +he 'ilin) o' an in'or$ation, (ithout a preli$inary investi)ation
havin) been 'irst conducted, is sanctioned by the <ules. Sec. 0, <ule 11! o' the <ules o' Court, as
a$ended, reads*
Sec. 0. *hen accused lawfull' arrested without a warrant. H When a person is
la('ully arrested (ithout a (arrant 'or an o''ense co)nizable by the <e)ional +rial
Court the co$plaint or in'or$ation $ay be 'iled by the o''ended party, peace o''icer
or 'iscal (ithout a preli$inary investi)ation havin) been 'irst conducted, on the basis
o' the a''idavit o' the o''ended party or arrestin) o''icer or person.
,o(ever, be'ore the 'ilin) o' such co$plaint or in'or$ation, the person arrested $ay
ask 'or a preli$inary investi)ation by a proper o''icer in accordance (ith this <ule,
but he $ust si)n a (aiver o' the provisions o' ;rticle 1!/ o' the <evised "enal Code,
as a$ended, (ith the assistance o' a la(yer and in case o' non-availability o' a
la(yer, a responsible person o' his choice. #ot(ithstandin) such (aiver, he $ay
apply 'or bail as provided in the correspondin) rule and the investi)ation $ust be
ter$inated (ithin 'i'teen 21/3 days 'ro$ its inception.
:' the case has been 'iled in court (ithout a preli$inary investi)ation havin) been 'irst
conducted, the accused $ay (ithin 'ive 2/3 days 'ro$ the ti$e he learns o' the 'ilin)
o' the in'or$ation, ask 'or a preli$inary investi)ation (ith the sa$e ri)ht to adduced
evidence in his 'avor in the $anner prescribed in this <ule.
+he petitioners Co$in)o ;nonuevo and <a$on Casiple, ho(ever, re'used to si)n a (aiver o' the
provisions o' ;rticle 1!/ o' the <evised "enal Code, as a$ended. :n the in'or$ations 'iled a)ainst
the$, the prosecutor $ade identical certi'ications, as 'ollo(s*
+his is to certi'y that the accused has been char)ed in accordance (ith Sec. 0, <ule
11! o' the 19J/ <ules on Cri$inal "rocedure, that no preli$inary investi)ation (as
conducted because the accused has not $ade and si)ned a (aiver o' the provisions
o' ;rt. 1!/ o' the <evised "enal Code, as a$ended= that based on the evidence
presented, there is reasonable )round to believe that the cri$e has been co$$itted,
and that the accused is probably )uilty thereo'.
#or did petitioners ask 'or a preli$inary investi)ation a'ter the in'or$ations had been 'iled a)ainst
the$ in court. "etitioners cannot no( clai$ that they have been deprived o' their constitutional ri)ht
to due process.
:?
:n @.<. #o. J16! 26caya vs. ;)uirre3, the arrest (ithout (arrant, o' 6ic(' Oca'a is >usti'ied under
the <ules, since she had (ith her unlicensed a$$unition (hen she (as arrested. +he record o' this
case sho(s that on 1! &ay 19JJ, a)ents o' the "C :ntelli)ence and :nvesti)ation o' the <izal "C-
:#" Co$$and, ar$ed (ith a search (arrant issued by Jud)e 7utropio &i)rino o' the <e)ional +rial
Court o' "asi), &etro &anila, conducted a search o' a house located at 8lock 19, "hase ::, &arikina
@reen ,ei)hts, &arikina, &etro &anila, believed to be occupied by 8enito +ia$son, head o' the
C""-#";. :n the course o' the search, ?icky 6caya arrived in a car driven by Canny <ivera.
Subversive docu$ents and several rounds o' a$$unition 'or a .4/ cal. pistol (ere 'ound in the car
o' ?icky 6caya. ;s a result, ?icky 6caya and Canny <ivera (ere brou)ht to the "C ,eadDuarters
'or investi)ation. When ?icky 6caya could not produce any per$it or authorization to possess the
a$$unition, an in'or$ation char)in) her (ith violation o' "C 1J66 (as 'iled (ith the <e)ional +rial
Court o' "asi), &etro &anila. +he case is docketed therein as Cri$inal Case #o. 0440. Canny
<ivera, on the other hand, (as released 'ro$ custody.
6n 10 &ay 19JJ, a petition 'or habeas corpus (as 'iled, (ith this Court on behal' o' ?icky 6caya
and Canny <ivera. :t (as alle)ed therein that ?icky 6caya (as ille)ally arrested and detained, and
denied the ri)ht to a preli$inary investi)ation.
:t (ould appear, ho(ever, that ?icky 6caya (as arrested in flagranti delicto so that her arrest (ithout
a (arrant is >usti'ied. #o preli$inary investi)ation (as conducted because she (as arrested (ithout
a (arrant and she re'used to (aive the provisions o' ;rticle 1!/ o' the <evised "enal Code,
pursuant to Sec. 0, <ule 11! o' the <ule o' Court, as a$ended.
?
+he petitioners ?icky 6caya, Co$in)o ;nonuevo, <a$on Casiple, and ;$elia <oDue clai$ that the
'irear$s, a$$unition and subversive docu$ents alle)ed to have been 'ound in their possession
(hen they (ere arrested, did not belon) to the$, but (ere EplantedE by the $ilitary a)ents to >usti'y
their ille)al arrest.
+he petitioners, ho(ever, have not introduced any evidence to support their a'oresaid clai$. 6n the
other hand, no evil $otive or ill-(ill on the part o' the arrestin) o''icers that (ould cause the said
arrestin) o''icers in these cases to accuse the petitioners 'alsely, has been sho(n. 8esides, the
arrestin) o''icers in these cases do not appear to be seekers o' )lory and bounty hunters 'or, as
counsel 'or the petitioners ;nonuevo and Casiple say, Ethere is absolutely nothin) in the evidence
sub$itted durin) the inDuest that petitioners are on the 1;F" 6rder o' 8attle (ith a re(ard o'
"1/5,555.55 each on their heads.1E
6
6n the other hand, as pointed out by the Solicitor @eneral, the
arrest o' the petitioners is not a product o' a (itch hunt or a 'ishin) e9pedition, but the result o' an in-depth
surveillance o' #"; sa'ehouses pointed to by no less than 'or$er co$rades o' the petitioners in the rebel
$ove$ent.
+he Solicitor @eneral, in his Consolidated &e$orandu$, aptly observes*
. . . . +o reiterate, the 'ocal point in the case o' petitioners <oDue, 8uenaobra,
;nonuevo and Casiple, (as the la('ul search and seizure conducted by the $ilitary
at the residence o' <enato Constantino at ?illaluz Co$pound, &olave St., &arikina
,ei)hts, &arikina, &etro &anila. +he raid at Constantino1s residence, (as not a (itch
huntin) or 'ishin) e9pedition on the part o' the $ilitary. :t (as a result o' an in-depth
$ilitary surveillance coupled (ith the leads provided by 'or$er $e$bers o' the
under)round subversive or)anizations. +hat raid produced positive results. to date,
nobody has disputed the 'act that the residence o' Constantino (hen raided yielded
co$$unication eDuip$ent, 'irear$s and a$$unitions, as (ell as subversive
docu$ents.
+he $ilitary a)ents (orkin) on the in'or$ation provided by Constantino that other
$e$bers o' his )roup (ere co$in) to his place, reasonably conducted a Estake-outE
operation (hereby so$e $e$bers o' the raidin) tea$ (ere le't behind the place.
+rue enou)h, barely t(o hours a'ter the raid and Constantino1s arrest, petitioner
8uenaobra arrived at Constantino1s residence. ,e acted suspiciously and (hen
'risked and searched by the $ilitary authorities, 'ound in his person (ere letters.
+hey are no ordinary letters, as even a cursory readin) (ould sho(. #ot only that,
8uenaobra ad$itted that he is a #"; courier and (as there to deliver the letters to
Constantino.
SubseDuently, less than t(enty 'our hours a'ter the arrest o' Constantino and
8uenaobra, petitioners ;nonuevo and Casiple arrived at Constantino1s place. Would
it be unreasonable 'or the $ilitary a)ents to believe that petitioners ;nonuevo and
Casiple are a$on) those e9pected to visit Constantino1s residence considerin) that
Constatino1s in'or$ation (as true, in that 8uenaobra did co$e to that placeI Was it
unreasonable under the circu$stances, on the part o' the $ilitary a)ents, not to 'risk
and search anyone (ho should visit the residence o' Constantino, such as
petitioners ;nonuevo and CasipleI &ust this ,onorable Court yield to ;nonuevo and
Casiple1s 'li$sy and bare assertion that they (ent to visit Constantino, (ho (as to
leave 'or Saudi ;rabia on the day they (ere arrested thereatI
;s to petitioner <oDue, (as it unreasonable 'or the $ilitary authorities to e''ect her
arrest (ithout (arrant considerin) that it (as 8uenaobra (ho provided the leads on
her identityI :t cannot be denied that 8uenaobra had connection (ith <oDue.
8ecause the 'or$er has the phone nu$ber o' the latter. Why the necessity o'
>u$blin) <oDue1s telephone nu$ber as (ritten on a piece o' paper taken 'ro$
8uenaobra1s possessionI "etitioners <oDue and 8uenaobra have not o''ered any
plausible reason so 'ar.
:n all the above incidents, respondents $aintain that they acted reasonably, under
the ti$e, place and circu$stances o' the events in Duestion, especially considerin)
that at the ti$e o' petitioner1s arrest, incri$inatory evidence, i.e, 'irear$s,
a$$unitions andBor subversive docu$ents (ere 'ound in their possession.
"etitioners, (hen arrested, (ere neither takin) their snacks nor innocently visitin) a
ca$p, but (ere arrested in such ti$e, place and circu$stances, 'ro$ (hich one can
reasonably conclude tat they (ere up to a sinister plot, involvin) ut$ost secrecy and
co$prehensive conspiracy.
:?
:n. @.<. #o. J/0!0 27spiritu vs. %i$3, the release on habeas corpus o' the petitioner Ceo)racias
7spiritu, (ho is detained by virtue o' an :n'or$ation 'or ?iolation o' ;rticle 14! o' the <evised "enal
Code 2:ncitin) to Sedition3 'iled (ith the <e)ional +rial Court o' &anila, is si$ilarly not (arranted.
+he record o' the case sho(s that the said petitioner is the @eneral Secretary o' the "ina)kaisahan)
Sa$ahan n) +super at 6perators #ation(ide 2":S+6#3, an association o' drivers and operators o'
public service vehicles in the "hilippines, or)anized 'or their $utual aid and protection.
"etitioner clai$s that at about /*55 o1clock in the $ornin) o' ! #ove$ber 19JJ, (hile he (as
sleepin) in his ho$e located at 6 ?alencia St., Sta. &esa, &anila, he (as a(akened by his sister
&aria "az %alic (ho told hi$ that a )roup o' persons (anted to hire his >eepney. When he (ent
do(n to talk to the$, he (as i$$ediately put under arrest. When he asked 'or the (arrant o' arrest,
the $en, headed by Col. <icardo <eyes, bodily li'ted hi$ and placed hi$ in their o(ner-type
>eepney. ,e de$anded that his sister, &aria "az %alic, be allo(ed to acco$pany hi$, but the $en
did not accede to his reDuest and hurriedly sped a(ay.
,e (as brou)ht to "olice Station #o. J o' the Western "olice Cistrict at 8lu$entritt, &anila (here he
(as interro)ated and detained. +hen, at about 9*55 o1clock o' the sa$e $ornin), he (as brou)ht
be'ore the respondent %i$ and, there and then, the said respondent ordered his arrest and
detention. ,e (as therea'ter brou)ht to the @eneral ;ssi)n$ent Section, :nvesti)ation Civision o'
the Western "olice Cistrict under "olice Capt. Cresenciano ;. Cabasal (here he (as detained,
restrained and deprived o' his liberty.
7
+he respondents clai$ ho(ever, that the detention o' the petitioner is >usti'ied in vie( o' the
:n'or$ation 'iled a)ainst hi$ be'ore the <e)ional +rial Court o' &anila, docketed therein as Cri$inal
Case #o. JJ-6J-J/, char)in) hi$ (ith violation o' ;rt. 14! o' the <evised "enal Code 2:ncitin) to
Sedition3.
+he respondents also clai$ that the petitioner (as la('ully arrested (ithout a >udicial (arrant o'
arrest since petitioner (hen arrested had in 'act >ust co$$itted an o''ense in that in the a'ternoon o'
!! #ove$ber 19JJ, durin) a press con'erence at the #ational "ress Club.
Ceo)racias 7spiritu throu)h tri-$edia (as heard ur)in) all drivers and operators to
)o on nation(ide strike on #ove$ber !, 19JJ, to 'orce the )overn$ent to )ive into
their de$ands to lo(er the prices o' spare parts, co$$odities, (ater and the
i$$ediate release 'ro$ detention o' the president o' the ":S+6# 2"ina)-isan)
Sa$ahan n) +super 6perators #ation(ide3. Further, (e heard Ceo)racias 7spiritu
takin) the place o' ":S+6# president &edardo <oda and also announced the
'or$ation o' the ;lliance Crivers ;ssociation to )o on nation(ide strike on #ove$ber
!, 19JJ.
2
"olice$en (aited 'or petitioner outside the #ational "res Club in order to investi)ate hi$, but he
)ave the la($en the slip.
9
,e (as ne9t seen at about /*55 o1clock that a'ternoon at a )atherin) o'
drivers and sy$phatizers at the corner o' &a)saysay 8lvd. and ?alencia Street, Sta. &esa, &anila (here
he (as heard to say*
8ukas tuloy an) (el)a natin, su$a)ot na an) Cebu at 8icol na kasali sila, at hindi
tayo titi)il han))an) hindi binibi)ay n) )obyerno ni Cory an) )usto natin) pa)baba
n) hala)a n) spare parts, bilihin at and pa)papalaya sa atin) pinuno na si .a
<oda hanggang sa mag(agulo na.
10
2e$phasis supplied3
+he police 'inally cau)ht up (ith the petitioner on ! #ove$ber 19JJ. ,e (as invited 'or Duestionin)
and brou)ht to police headDuarters a'ter (hich an :n'or$ation 'or violation o' ;rt. 14! o' the <evised
"enal Code (as 'iled a)ainst hi$ be'ore the <e)ional +rial Court o' &anila.
11
Since the arrest o' the petitioner (ithout a (arrant (as in accordance (ith the provisions o' <ule
11, Sec. /2b3 o' the <ules o' Court and that the petitioner is detained by virtue o' a valid in'or$ation
'iled (ith the co$petent court, he $ay not be released on habeas corpus. ,e $ay, ho(ever be
released upon postin) bail as reco$$ended. ,o(ever, (e 'ind the a$ount o' the reco$$ended bail
2"65,555.553 e9cessive and (e reduce it to "15,555.55 only.
?::
:n @.<. #o. J6! 2#azareno vs. Station Co$$ander3, (e also 'ind no $erit in the sub$ission
o' 9arciso 9azareno that he (as ille)ally arrested and is unla('ully detained. +he record o' this case
sho(s that at about J*5 o1clock in the $ornin) o' 14 Cece$ber 19JJ, one <o$ulo 8unye :: (as
killed by a )roup o' $en near the corner o' +. &olina and &endiola Streets in ;laban), &untin)lupa,
&etro &anila. 6ne o' the suspects in the killin) (as <a$il <e)al (ho (as arrested by the police on
!J Cece$ber 19JJ. Apon Duestionin), <e)al pointed to #arciso #azareno as on o' his co$panions
in the killin) o' the said <o$ulo 8unye ::. :n vie( thereo', the police o''icers, (ithout (arrant, picked
up #arciso #azareno and brou)ht hi$ to the police headDuarters 'or Duestionin). 6bviously, the
evidence o' petitioner1s )uilt is stron) because on January 19J9, an in'or$ation char)in) #arciso
#azareno, <a$il <e)ala, and t(o 2!3 others, (ith the killin) o' <o$ulo 8unye :: (as 'iled (ith the
<e)ional +rial Court o' &akati, &etro &anila. +he case is docketed therein as Cri$inal Case #o.
01.
6n 0 January 19J9, #arciso #azareno 'iled a $otion to post bail, but the $otion (as denied by the
trial court in an order dated 15 January 19J9, even as the $otion to post bail, earlier 'iled by his co-
accused, &anuel %aurea)a, (as )ranted by the sa$e trial court.
6n 1 January 19J9, a petition 'or habeas corpus (as 'iled (ith this Court on behal' o' #arciso
#azareno and on 1 January 19J9, the Court issued the (rit o' habeas corpus, returnable to the
"residin) Jud)e o' the <e)ional +rial Court o' 8iTan, %a)una, 8ranch !4, orderin) said court to hear
the case on 5 January 19J9 and therea'ter resolve the petition.
;t the conclusion o' the hearin), or on 1 February 19J9, the "residin) Jud)e o' the <e)ional +rial
Court o' 8iTan, %a)una issued a resolution denyin) the petition 'or habeas corpus, it appearin) that
the said #arciso #azareno is in the custody o' the respondents by reason o' an in'or$ation 'iled
a)ainst hi$ (ith the <e)ional +rial Court o' &akati, &etro &anila (hich had taken co)nizance o'
said case and had, in 'act, denied the $otion 'or bail 'iled by said #arciso #azareno 2presu$ably
because o' the stren)th o' the evidence a)ainst hi$3.
+he 'indin)s o' the "residin) Jud)e o' the <e)ional +rial Court o' 8iTan, %a)una are based upon the
'acts and the la(. ConseDuently, (e (ill not disturb the sa$e. 7vidently, the arrest o' #azareno (as
e''ected by the police (ithout (arrant pursuant to Sec. /2b3, <ule 11, <ules o' Court a'ter he (as
positively i$plicated by his co-accused <a$il <e)ala in the killin) o' <o$ulo 8unye
::= and a'ter investi)ation by the police authorities. ;s held in 0eople %s. Ancheta*
12
+he obli)ation o' an a)ent o' authority to $ake an arrest by reason o' a cri$e, does
not presuppose as a necessary reDuisite 'or the 'ul'ill$ent thereo', the indubitable
e9istence o' a cri$e. For the detention to be per'ectly le)al, it is su''icient that the
a)ent or person in authority $akin) the arrest has reasonably su''icient )rounds to
believe the e9istence o' an act havin) the characteristics o' a cri$e and that the
sa$e )rounds e9ist to believe that the person sou)ht to be detained participated
therein.
?:::
:t is to be noted that, in all the petitions here considered, cri$inal char)es have been 'iled in the
proper courts a)ainst the petitioners. +he rule is, that i' a person alle)ed to be restrained o' his
liberty is in the custody o' an o''icer under process issued by a court >ud)e, and that the court or
>ud)e had >urisdiction to issue the process or $ake the order, o' if such person is charged before
an' court, the (rit o' habeas corpus (ill not be allo(ed. Section 4, <ule 15!, <ules o' Court, as
a$ended is Duite e9plicit in providin) that*
Sec. 4. *hen writ is allowed or discharge authorized. H :' it appears that the person
alle)ed to be restrained o' his liberty is in the custody o' an o''icer under process
issued by a court or >ud)e or by virtue o' a >ud)$ent or order o' a court o' record, and
that the court or >ud)e had >urisdiction to issue the process, render the >ud)$ent, or
$ake the order, the (rit shall not be allo(ed= or i' the >urisdiction appears a'ter the
(rit is allo(ed, the person shall not be dischar)ed by reason o' any in'or$ality or
de'ect in the process, >ud)$ent, or order. 9or shall an'thing in this rule be held to
authorize the discharge of a person charged with a con%icted of an offense in the
0hilippines or o' a person su''erin) i$prison$ent under la('ul >ud)$ent. 2e$phasis
supplied3
;t this point, (e re'er to petitioner1s plea 'or the Court o' re-e9a$ine and, therea'ter, abandon its
pronounce$ent in 3lagan %s. Enrile,
13
that a (rit o' habeas corpus is no lon)er available a'ter an
in'or$ation is 'iled a)ainst the person detained and a (arrant o' arrest or an order o' co$$it$ent, is
issued by the court (here said in'or$ation has been 'iled.
15
+he petitioners clai$ that the said rulin),
(hich (as handed do(n durin) the past dictatorial re)i$e to en'orce and stren)then said re)i$e, has no
place under the present de$ocratic dispensation and collides (ith the basic, 'unda$ental, and
constitutional ri)hts o' the people. "etitioners point out that the said doctrine $akes possible the arrest
and detention o' innocent persons despite lack o' evidence a)ainst the$, and, $ost o'ten, it is only a'ter a
petition 'or habeas corpus is 'iled be'ore the court that the $ilitary authorities 'ile the cri$inal in'or$ation
in the courts o' la( to be able to hide behind the protective $antle o' the said doctrine. +his, petitioners
assert, stands as an obstacle to the 'reedo$ and liberty o' the people and per$its la(less and arbitrary
State action.
We 'ind, ho(ever, no co$pellin) reason to abandon the said doctrine. :t is based upon e9press
provision o' the <ules o' Court and the e9i)encies served by the la(. +he 'ears e9pressed by the
petitioners are not really unre$ediable. ;s the Court sees it, re-e9a$ination or reappraisal, (ith a
vie( to its abandon$ent, o' the :la)an case doctrine is not the ans(er. +he ans(er and the better
practice (ould be, not to li$it the 'unction o' thehabeas corpus to a $ere inDuiry as to (hether or not
the court (hich issued the process, >ud)$ent or order o' co$$it$ent or be'ore (ho$ the detained
person is char)ed, had >urisdiction or not to issue the process, >ud)$ent or order or to take
co)nizance o' the case, but rather, as the Court itsel' states in Morales- .r. %s. Enrile,
19
Ein all
petitions 'or habeas corpus the court $ust inDuire into every phase and aspect o' petitioner1s detention-
'ro$ the $o$ent petition was ta(en into custod' up to the moment the court passes upon the merits of
the petition=E and Eonl' after such a scrutin' can the court satisf' itself that the due process clause of our
,onstitution has in fact been satisfied.E +his is e9actly (hat the Court has done in the petitions at bar.
+his is (hat should hence'orth be done in all 'uture cases o' habeas corpus. :n Short, all cases involvin)
deprivation o' individual liberty should be pro$ptly brou)ht to the courts 'or their i$$ediate scrutiny and
disposition.
W,7<7F6<7, the petitions are hereby C:S&:SS7C, e9cept that in G.+. 9o. <>?=? 27spiritu vs.
%i$3, the bail bond 'or petitioner1s provisional liberty is hereby ordered reduced 'ro$ "65,555.55 to
"15,555.55. #o costs.
S6 6<C7<7C.
Fernan ,...- 9ar%asa- ,...- Melencio-)errera- Gutierrez- .r.- 0aras- Ganca'co- 0adilla- /idin- Gri#o-
A&uino- Medialdea and +egalado- ...- concur.
Se*/+e O*&n&on(
CRU1, J., dissentin) and concurrin)*
: dissent inso'ar as the ponencia a''ir$s the rulin) in Garcia-0adilla %. 7nrile that subversion is a
continuin) o''ense, to >usti'y the arrest (ithout (arrant o' any person at an' time as lon) as the
authorities say he has been placed under surveillance on suspicion o' the o''ense. +hat is a
dan)erous doctrine. ; person $ay be arrested (hen he is doin) the $ost innocent acts, as (hen he
is only (ashin) his hands, or takin) his supper, or even (hen he is sleepin), on the )round that he
is co$$ittin) the Econtinuin)E o''ense o' subversion. %ibertarians (ere appalled (hen that doctrine
(as i$posed durin) the &arcos re)i$e. : a$ alar$ed that even no( this ne( Court is (illin) to
sustain it. : stron)ly ur)e $y collea)ues to discard it alto)ether as one o' the dis)race'ul vesti)es o'
the past dictatorship and uphold the rule )uaranteein) the ri)ht o' the people a)ainst unreasonable
searches and seizures. We can do no less i' (e are really to re>ect the past oppression and co$$it
ourselves to the true 'reedo$. 7ven i' it be ar)ued that the $ilitary should be )iven every support in
our 'i)ht a)ainst subversion, : $aintain that that 'i)ht $ust be (a)ed honorably, in accordance (ith
the 8ill o' <i)hts. : do not believe that in 'i)htin) the ene$y (e $ust adopt the (ays o' the ene$y,
(hich are precisely (hat (e are 'i)htin) against. : sub$it that our $ore i$portant $otivation should
be (hat are (e 'i)htin) for.
79cept 'or this reservation and appeal, : concur (ith the decision.
"EL$C$ANO, J., concurrin)*
: concur in the result reached in each o' the ei)ht 2J3 consolidated "etitions 'or )abeas ,orpus. ;t
the sa$e ti$e, : have so$e reservations concernin) certain state$ents $ade by the Court in @.<.
#o. J1/60 2A$il, et al. v. <a$os3 2"art : o' the Cecision3 and in @.<. #o. J/0!0 27spiritu v. %i$3
2"art ?: o' the Cecision3.
:n @.<. #o. J1/60 2A$il, et al. v. <a$os3, the per curiam opinion states cate)orically that* Ethe
cri$es o' rebellion, subversion, conspiracy or proposal to co$$it such cri$es, and cri$es or
o''enses co$$itted in 'urtherance thereo' or in connection there(ith constitute direct assaults
a)ainst the State and are in the nature o' continuing crimes.E +he $a>ority here relies upon Garcia-
0adilla %. Enrile 21!1 SC<; 40! F19JG3. +he $a>ority there $ade the sa$e eDually broad state$ent
but (ithout any visible e''ort to e9a$ine the basis, scope and $eanin) o' such a s(eepin)
state$ent. Garcia-0adilla did not even identi'y the speci'ic o''enses (hich it re)arded as Ein the
nature o' continuin) o''enses (hich set the$ apart 'ro$ the co$$on o''ensesE 21!1 SC<; at 4J93.
:t appears to $e that in @.<. #o. J/0!0 27spiritu v. %i$3 2"art ?: o' the Cecision3, the per
curiam opinion has in e''ect included the o''ense o' Eincitin) to seditionE penalized under ;rticle 14!
o' the <evised "enal Code as a Econtinuin) o''enseE under the capacious blanket o' the $a>ority
opinion in Garcia-0adilla, at least 'or purposes o' deter$inin) the le)ality o' the arrest (ithout a
(arrant o' petitioner Ceo)racias 7spiritu.
: (ould respect'ully recall to $y learned collea)ues in the Court that Eincitin) to seditionE is de'ined in
;rticle 14! o' the <evised "enal Code in ter$s o' speech
1
and that conseDuently it is i$portant
constantly do distin)uish bet(een speech (hich is protected by the constitutional )uaranty o' 'reedo$ o'
speech and o' the press and speech (hich $ay constitutionally be re)arded as violative o' ;rticle 14! o'
the <evised "enal Code. "recisely because speech (hich the police authorities $i)ht re)ard as seditious
or as cri$inal incitin) to sedition $ay (ell turn out to be only an e9ercise o' a constitutionally )uaranteed
'reedo$, : (ould sub$it that (e $ust apply the concept o' Econtinuin) o''enseE narro(ly 'or purposes o'
application o' Section /2b3, <ule 11 o' the <evised <ules o' Court.
:n $y vie(, the very broad state$ent $ade about Econtinuin) cri$esE in @.<. #o. J1/60 2A$il, et al
v. <a$os3 constitutes dictum, considerin) that <olando Cural and 8ernardo :tucal, Jr. had already
been tried in the court belo( 'or Edouble $urder, etc.E and 'ound )uilty o' the o''ense char)ed,
sentenced accordin)ly, and at least in the case o' <olando Cural, service o' the sentence i$posed
upon hi$ by the trial court had already be)un.
Si$ilarly, in @.<. #o. J/0!0 27spiritu v. %i$3 the state$ent that the arrest o' petitioner 7spiritu
(ithout a (arrant (as in accordance (ith the provisions o' Section /2b3, <ule 11 o' the <evised
<ules o' Court does not appear strictly necessary, considerin) that the petitioner had already been
char)ed in a valid in'or$ation 'iled (ith the co$petent court, (hich court had presu$ably issued an
order 'or his co$$it$ent, and considerin) 'urther that he is entitled to bail.
+here is thus no obstacle, to $y $ind, to a care'ul e9a$ination o' the doctrine o' Econtinuin) cri$esE
as applied to such o''enses as subversion and incitin) to sedition and possibly other o''enses, in
so$e 'uture case (here that issue is raised sDuarely and is unavoidable.
,ortes- ..- concurs.
SARM$ENTO, J., dissentin)*
: be) to di''er 'ro$ $y brethren. : sub$it that habeas corpus lies in all ei)ht cases.
@.<. #o. J1/60
+he $a>ority says that <olando Cural1s arrest (ithout a (arrant is la('ul under the <ules o' Court,
(hich reads*
Sec. /. Arrest without warrant= when lawful. H ; peace o''icer or a private person
$ay, (ithout a (arrant, arrest a person*
2a3 When, in his presence, the person to be arrested has co$$itted, is actually
co$$ittin), or is atte$ptin) to co$$it an o''ense=
2b3 When an o''ense has in 'act >ust been co$$itted, and he has personal
kno(led)e o' 'acts indicatin) that the person to be arrested has co$$itted it= and
2c3 When the person to be arrested is a prisoner (ho has escaped 'ro$ a penal
establish$ent or place (here he is servin) 'inal >ud)$ent or te$porarily con'ined
(hile his case is pendin), or has escaped (hile bein) trans'erred 'ro$ one
con'ine$ent to another.
:n cases 'allin) under para)raphs 2a3 and 2b3 hereo', the person arrested (ithout a (arrant shall be
'orth(ith delivered to the nearest police station or >ail, and he shall be proceeded a)ainst in
accordance (ith <ule 11!, Section 0.
1
E<olando Cural,E so states the $a>ority, E(as arrested 'or bein) a $e$ber o' the #e( "eople1s ;r$y
2#";3, an outla(ed subversive or)anization,E
2
and that EFsGubversion bein) a continuing offense, the
arrest o' <olando Cural (ithout a (arrant is >usti'ied as it can be said that he (as co$$ittin) an o''ense
(hen arrested.E
3
;s : said, : be) to di''er.
First, <olando Cural (as char)ed (ith ECouble &urder (ith ;ssault upon ;)ents o' ;uthority.E
5
:' he
had been )uilty o' subversion H the o''ense 'or (hich he (as supposedly arrested %ia a (arrantless
arrest H subversion (as the lo)ical cri$e (ith (hich he should have been char)ed.
+he authorities could not have ri)htly arrested hi$ 'or subversion on account o' the slay o' the t(o
C;"C6& soldiers, a possible basis 'or violation o' the ;nti-Subversion ;ct, because as the $a>ority
points out, Ehe (as not arrested (hile in the act o' shootin) Fthe$G . . . FnGor (as he arrested >ust
a'ter the co$$ission o' the said o''ense 'or his arrest ca$e a da' after the said shootin) incident.E
9
Second, : do not believe that a (arrantless 2or citizen1s3 arrest is possible in case o' subversion H in
the absence o' any overt act that (ould >usti'y the authorities to act. ESubversion,E as the ter$ is
kno(n in la(, $eans Ekno(in)ly, (il'ully and b' o%ert acts a''iliatFin)G Fonesel'G (ith, beco$Fin)G or
re$ainFin)G a $e$ber o' the Co$$unist "arty o' the "hilippines andBor its successor or o' any
subversion association as de'ined in sections t(o and three hereo'. . . . E
6
%o)ically, the $ilitary could
not have kno(n that Cural, at the ti$e he (as taken, (as a $e$ber o' the #e( "eople1s ;r$y because
he (as not per'or$in) any over act that he (as truly, a rebel. :ndeed, it had to take a Everi'icationE
6
be'ore
he could be identi'ied as alle)edly a $e$ber o' the under)round ar$y. Ander these circu$stances, : a$
hard put to say that he (as co$$ittin) subversion (hen he (as arrested, assu$in) that he (as )uilty o'
subversion, 'or purposes o' a (arrantless arrest.
E6vert actE is $ade up o' EFeGvery act, $ove$ent, deed and (ord o' the
FaccusedG,E
7
indicatin) intent to acco$plish a cri$inal ob>ective. Cural, at the ti$e he
(as arrested, (as lyin) in a hospital bed. +his is not the overt act conte$plated by la(.
Ander the <ule above-Duoted, the person $ust have either been apprehended in flagranti 2'irst
para)raph3 or a'ter the act, provided that the peace o''icer has Epersonal kno(led)eE that he, the
suspect, is )uilty. 2second para)raph.3 ;s : stated, Cural (as not cau)ht in the act. &oreover, (hat
the <e)ional :ntelli)ence 6perations Anit o' the Capital Co$$and 2<:6A-C;"C6&3 had in its
hands (as a $ere Econ'idential in'or$ation.E : do not think that this is the personal kno(led)e
re'erred to by the second para)raph.
2
"lainly and si$ply, it is hearsay.
+he rule, 'urther$ore, on (arrantless arrest is an e9ceptional one. 8y its lan)ua)e, it $ay be
e9ercised only in the $ost ur)ent cases and (hen the )uilt o' an o''ender is plain and evident. What
: think (e have here is purely and si$ply, the $ilitary takin) the la( in its hands.
8y sta$pin) validity to <olando Cural1s (arrantless arrest, : a$ a'raid that the $a>ority has set a
very dan)erous precedent. With all due respect, $y brethren has accorded the $ilitary a blanket
authority to pick up any Juan, "edro, and &aria (ithout a (arrant 'or the si$ple reason that
subversion is supposed to be a continuin) o''ense.
+hat <olando Cural (as arrested 'or bein) a $e$ber o' the #e( "eople1s ;r$yE
9
is 'urther$ore to
$e, a hasty state$ent. :t has yet to be established that Cural is indeed a $e$ber o' the Co$$unist
"arty1s $ilitary ar$. ;nd unless proven )uilty, he is presu$ed, and $ust be presu$ed $ost o' all by this
Court, to be innocent.
+he $a>ority also says that habeas corpus is $oot and acade$ic because Cural has been convicted
and is servin) sentence. : like(ise take e9ception. :t has been held that* E+he (rit $ay be )ranted
upon a >ud)$ent already 'inal.E
10
+he (rit o' liberty is a hi)h prero)ative (rit.
11
?indication o' due process is its historic o''ice.
12
@.<. #os. J4/J1-J!
:n the case o' Wil'redo 8uenaobra, the $a>ority avers that he had E$ani'ested his desire to stay in
the "C-:#" stockade,E
13
'or (hich habeas corpus has supposedly beco$e $oot and acade$ic. : a$ not
convinced that that is reason enou)h to dis$iss habeas corpus as $oot and acade$ic. :t is the duty o'
this Court, in $y opinion, to $ake sure that 8uenaobra has $ade his choice 'reely and voluntarily.
"ersonally, : 'ind it indeed stran)e (hy he should pre'er to stay in >ail than )o scot-'ree.
+here is 'urther no doubt that 8uenaobra1s petition is one i$pressed (ith a public interest. :n one
case
15
(e denied a $otion to (ithdra( a petition 'or habeas corpus in vie( o' its 'ar-reachin) i$portance
to the $otion, : do not see ho( (e should act di''erently, perhaps even insouciantly, here, especially since
it involves persons (ho think and believe di''erently 'ro$ the rest o' us.
8oth 8uenaobra and ;$elia <oDue supposedly ad$itted that they (ere rankin) o''icers o' the
Co$$unist "arty o' the "hilippines. ;ccordin) to the $a>ority, 8uenaobra and <oDue are bound by
their ad$issions.
19
+hat both parties had ad$itted to be $e$bers o' the Co$$unist "arty o' the "hilippines 2the
#ational Anited Front Co$$ission3 is a naked contention o' the $ilitary. +he 'act that it has not been
controverted, in $y vie(, does not >usti'y the couple1s arrest (ithout (arrant. Worse, by relyin) on
the bare (ord o' the $ilitary, this very Court has, to all intents and purposes, conde$ned the duo 'or
a cri$e 2subversion andBor ille)al possession o' 'irear$s3 the bone o' contention, precisely, belo(.
@.<. #os. J4/J-J4
: also 'ind the (arrantless arrests o' Co$in)o ;Tonuevo and <a$on Casiple to be contrary to la(.
+hat they are Ead$ittedly $e$bers o' the standin) co$$ittee o' the #AFCE
16
and that Esubversive
$aterialsE
17
and unlicensed 'irear$s (ere 'ound in their possession, are, like 8uenaobra1s and <oDue1s
cases, barren clai$s o' the $ilitary. : also 'ear that by the $a>ority1s stron) lan)ua)e 2that ;Tonuevo and
Casiple are ad$itted #ACF o''icers3 the $a>ority has pronounced the petitioners )uilty, (hen the lo(er
courts have yet to sit in >ud)$ent. : think (e should be the last to pree$pt the decision o' the trial courts.
We (ould have set to nau)ht the presu$ption o' innocence accused persons en>oy.
@.<. #o. J16!
With respect to the case o' ?icky 6caya, : a$ a'raid that : a$ inclined to(ards the sa$e conclusion.
+here (as basis H at the outset H to say that 6caya (as probably )uilty o' ille)al possession o'
'irear$s. ;s : have observed, a (arrantless arrest $ust be predicated upon the e9istence o' a cri$e
bein) actually co$$itted or havin) been co$$itted. What : 'ind here, rather, is nothin) less than a
success'ul 'ishin) e9pedition conducted by the $ilitary upon an un(ary citizen. : a$ Duite distressed
to note that this is still possible under a supposed de$ocracy.
@.<. #o. J/0!0
Ceo)racias 7spiritu (as 'ast asleep in his house (hen he (as placed under arrest. For the li'e o'
$e, : can not 'i)ure out ho( one can be picked upon in one1s o(n ho$e and held $o$ents later
(ithout a (arrant o' arrest.
7spiritu (as alle)edly )uilty o' incitin) to sedition as a result o' a speech delivered in a press
con'erence at the #ational "ress Club on #ove$ber !1, 19JJ. ,e (as, ho(ever, arrested the day
a'ter, #ove$ber !!, 19JJ. Ander these circu$stances, it eludes $e ho( an arrest (ithout a (arrant
could be >usti'ied, either under para)raph 2a3 or para)raph 2b3 o' the <ule on (arrantless arrests.
+he $a>ority avers that since an in'or$ation had been 'iled (ith the court, 7spiritu1s detention, is
alle)edly >usti'iable. +he Duestion is (hether or not an in'or$ation is an authority to hold a person in
custody. Ander the <ules, an in'or$ation $eans Ean accusation in (ritin) char)in) a person (ith an
o''ense subscribed by the 'iscal and 'iled (ith the court.E
12
:t is not, ho(ever, an order to keep one
under detention.
@.<. #o. J6!
+he o''ense 'or (hich #arciso #azareno is bein) held H the 'atal shootin) o' <o$ulo 8unye :: H
(as co$$itted on Cece$ber 14, 19JJ. :t (as, ho(ever, only on Cece$ber !J, 19JJ that the police
collared a suspect, <a$il <e)ala, (ho subseDuently pointed to #azareno as his acco$plice. :t also
escapes $e ho( #azareno, under these circu$stances, could have been validly put under arrest
(ithout a (arrant or the e9istence o' the circu$stance described under either para)raph 2a3 or 2b3 o'
the <ule above-Duoted* +he cri$e had lon) been co$$itted prior to the arrest.
@.<. #os. J1/60= J4/J1-J!= J4/J-J4= J16!=
J/0!0 M J6!= "ostscripts
+he $a>ority has disposed o' these cases on the bedrock o' (hat : vie( as doctrines that have lost
their luster*
1. +he teachin) o' Garcia-0adilla %. Enrile,
19
(hich held that subversion is a continuin) o''ense=
!. +he rulin) in 3lagan %. Enrile.
20
: also 'ind, 'or reasons to be set 'orth hereina'ter, a )lossin) over o' the 'unda$ental ri)hts o' the
petitioners under the Constitution in the authorities1 handlin) o' the petitioners1 cases.
: hold that Garcia-0adilla is no lon)er )ood la( under the present Constitution. +(o reasons
persuade $e. First, it is repu)nant to due process o' la(. 2E+he arrest, there'ore, need not 'ollo( the
usual procedure in the prosecution o' o''enses (hich reDuire the deter$ination by a >ud)e o' the
e9istence o' probable cause be'ore the issuance o' a >udicial (arrant o' arrest and the )rantin) o'
bail i' the o''ense is bailable.E
21
Ander the 19J0 Constitution, not even EFaG state o' $artial la(
suspendFsG the operation o' Fthe CharterG. . .E
22
Second, it leaves the liberty o' citizens to the (hi$ o' one
$an 2E6n these occasions Fthe e9istence o' a state o' e$er)encyG, the "resident takes absolute
co$$and, 'or the very li'e o' the #ation and its )overn$ent, (hich, incidentally, includes the courts, is in
)rave peril. :n so doin), the "resident is ans(erable only to his conscience, the people and to @od. For
their part, in )ivin) hi$ the supre$e $andate as their "resident, the people can only trust and pray that,
)ivin) hi$ their o(n loyalty and (ithout patriotis$, the "resident (ill not 'ail the$.E
23
3 Ander the Charter
no( prevailin), the Chie' 79ecutive shares, to a certain e9tent, the e9ercise o' e$er)ency po(ers, (ith
Con)ress.
25
;s a la( advocate under the re)i$e o' &arcos, : had challen)ed the soundness o' Garcia-0adilla. :
doubted (hether it could stand up under the ae)is o' the 190 Constitution. : still doubt (hether it
can (ithstand scrutiny under the 19J0 Constitution.
+he $a>ority also 'ails to point out that si9 days a'ter @arcia-"adilla (as handed do(n, the Court
pro$ul)atedMorales- .r. %. Enrile,
29
a case that in $y vie( has si)ni'icantly (hittled do(n Garcia-
0adillaIs very esse. :n that case, &r. Justice ,er$o)enes Concepcion, Jr. (rote 'or the $a>ority*
999 999 999
16. ;'ter a person is arrested . . . (ithout a (arrant . . . the proper co$plaint or
in'or$ation a)ainst hi$ $ust be 'iled (ith the courts o' >ustice (ithin the ti$e
prescribed by la(. . .
10. Failure o' the public o''icer to do so (ithout any valid reason (ould constitute a
violation o' ;rt. 1!/, <evised "enal Code, as a$ended. ;nd the person detained
(ould be entitled to be released on a (rit o' habeas corpus, unless he is detained
under subsistin) process issued by a co$petent court.
26
: also )ather 'ro$ the records that none o' the petitioners had been* 213 in'or$ed o' their ri)ht to
re$ain silent= and 2!3 to have co$petent and independent counsel.
27
;s : said, the $a>ority is denyin) habeas corpus on sel'-servin) clai$s o' the $ilitary that the
petitioners 2Cural, 8uenaobra, <oDue, ;Tonuevo, and Casiple3 are $e$bers o' the Co$$unist
"arty o' the "hilippines H and that they have supposedly con'essed to be in 'act $e$bers o' the
outla(ed or)anization. +he Duestion that has not been ans(ered is (hether or not these supposed
con'essions are ad$issible, 'or purposes o' a (arrantless arrest, as evidence o' )uilt, in the absence
o' any sho(in) that they (ere apprised o' their constitutional ri)hts. : a$ perturbed by the silence o'
the $a>ority. : a$ distressed because as (e held in one case, violation o' the Constitution divests
the court o' >urisdiction and entitles the accused to habeas corpus.
22
;ccordin) to the $a>ority, a Ere-e9a$ination or re-appraisal . . . o'
the :la)an doctrine is not the ans(er.E
29
:n $y considered opinion, 3lagan %. Enrile
30
does not ri)ht'ully
belon) in the volu$es o' "hilippine >urisprudence. :n that case, the petitioners, three Cavao-based
la(yers, (ere held by virtue o' a si$ple in'or$ation 2Ethe petition herein has been rendered $oot and
acade$ic by virtue o' the 'ilin) o' an :n'or$ation a)ainst the$ 'or <ebellion . . . and the issuance o' a
Warrant o' ;rrest a)ainst the$E
31
3 (ithout any preli$inary investi)ation 2e9a$ination3 havin) been
previously conducted 2to >usti'y the issuance o' a (arrant3.i EtEc-aUsl ;s : have stated, an in'or$ation is not a
(arrant o' arrest. +he 'act that an in'or$ation e9ists does not $ean that a (arrant (ill be issued.
;ccused persons have the ri)ht o' preli$inary investi)ation 2e9a$ination3.
32
:t 'or$s part and parcel
o' due process o' la( .
33
: 'ind the $a>ority1s reliance on ;.S. %. *ilson,
35
an ancient 2195/3 decision, inapt and untenable. :n
that case, the accused had been served (ith a (arrant and therea'ter taken into custody. +he Duestion
that 'aced the Court (as (hether or not the (arrant (as valid, a$id the accused1s char)es that the >ud)e
(ho issued it did not e9a$ine the co$plainant under oath. We held that the Duery (as acade$ic,
because the accused had already pleaded, and the case had entered the trial sta)e.
+he cases at bar are not on all 'ours. ,ere, no (arrant has been issued. : sub$it that in that event,
the petitioners are entitled to 'reedo$ by (ay o' the (rit o' liberty.
999 999 999
+he apprehensions in Duestion chronicle in $y $ind the increasin) pattern o' arrests and detention
in the country (ithout the sanction o' a >udicial decree. Four years a)o at E7CS;E, and $any years
be'ore it, althou)h (ith $uch 'e(er o' us, (e valiantly challen)ed a dictator and all the evils his
re)i$e had stood 'or* repression o' civil liberties and tra$plin) on o' hu$an ri)hts. We set up a
popular )overn$ent, restored its honored institutions, and cra'ted a de$ocratic constitution that
rests on the )uideposts o' peace and 'reedo$. : 'eel that (ith this Court1s rulin), (e have 'rittered
a(ay, by a stroke o' the pen, (hat (e had so painstakin)ly built in 'our years o' de$ocracy, and
al$ost t(enty years o' stru))le a)ainst tyranny.
:t also occurs to $e that : a$ interposin) (hat loo$s as a Dui9otic outlook o' "hilippine la( on
(arrantless arrests and its i$plications on liberty. :t is an i$pression that does not surprise $e.
Lui9otic as they $ay see$, and $odesty aside, $y vie(s re'lect a stron) bias on $y part H 'or)ed
by years o' e9perience and sharpened by a pain'ul and lonely stru))le 'or 'reedo$ and >ustice H
to(ard $en and (o$en (ho challen)e settled belie's. :' this dissent can not )ain any adherent 'or
no(, let it nevertheless )o on record as a plea to posterity and an appeal 'or tolerance o' opinions
(ith (hich (e not only disa)ree, but opinions (e loathe.
: 'eel it is $y duty to articulate this dissent.
Se*/+e O*&n&on(
CRU1, J., dissentin) and concurrin)*
: dissent inso'ar as the ponencia a''ir$s the rulin) in Garcia-0adilla %. 7nrile that subversion is a
continuin) o''ense, to >usti'y the arrest (ithout (arrant o' any person at an' time as lon) as the
authorities say he has been placed under surveillance on suspicion o' the o''ense. +hat is a
dan)erous doctrine. ; person $ay be arrested (hen he is doin) the $ost innocent acts, as (hen he
is only (ashin) his hands, or takin) his supper, or even (hen he is sleepin), on the )round that he
is co$$ittin) the Econtinuin)E o''ense o' subversion. %ibertarians (ere appalled (hen that doctrine
(as i$posed durin) the &arcos re)i$e. : a$ alar$ed that even no( this ne( Court is (illin) to
sustain it. : stron)ly ur)e $y collea)ues to discard it alto)ether as one o' the dis)race'ul vesti)es o'
the past dictatorship and uphold the rule )uaranteein) the ri)ht o' the people a)ainst unreasonable
searches and seizures. We can do no less i' (e are really to re>ect the past oppression and co$$it
ourselves to the true 'reedo$. 7ven i' it be ar)ued that the $ilitary should be )iven every support in
our 'i)ht a)ainst subversion, : $aintain that that 'i)ht $ust be (a)ed honorably, in accordance (ith
the 8ill o' <i)hts. : do not believe that in 'i)htin) the ene$y (e $ust adopt the (ays o' the ene$y,
(hich are precisely (hat (e are 'i)htin) against. : sub$it that our $ore i$portant $otivation should
be (hat are (e 'i)htin) for.
79cept 'or this reservation and appeal, : concur (ith the decision.
"EL$C$ANO, J., concurrin)*
: concur in the result reached in each o' the ei)ht 2J3 consolidated "etitions 'or )abeas ,orpus. ;t
the sa$e ti$e, : have so$e reservations concernin) certain state$ents $ade by the Court in @.<.
#o. J1/60 2A$il, et al. v. <a$os3 2"art : o' the Cecision3 and in @.<. #o. J/0!0 27spiritu v. %i$3
2"art ?: o' the Cecision3.
:n @.<. #o. J1/60 2A$il, et al. v. <a$os3, the per curiam opinion states cate)orically that* Ethe
cri$es o' rebellion, subversion, conspiracy or proposal to co$$it such cri$es, and cri$es or
o''enses co$$itted in 'urtherance thereo' or in connection there(ith constitute direct assaults
a)ainst the State and are in the nature o' continuing crimes.E +he $a>ority here relies upon Garcia-
0adilla %. Enrile 21!1 SC<; 40! F19JG3. +he $a>ority there $ade the sa$e eDually broad state$ent
but (ithout any visible e''ort to e9a$ine the basis, scope and $eanin) o' such a s(eepin)
state$ent. Garcia-0adilla did not even identi'y the speci'ic o''enses (hich it re)arded as Ein the
nature o' continuin) o''enses (hich set the$ apart 'ro$ the co$$on o''ensesE 21!1 SC<; at 4J93.
:t appears to $e that in @.<. #o. J/0!0 27spiritu v. %i$3 2"art ?: o' the Cecision3, the per
curiam opinion has in e''ect included the o''ense o' Eincitin) to seditionE penalized under ;rticle 14!
o' the <evised "enal Code as a Econtinuin) o''enseE under the capacious blanket o' the $a>ority
opinion in Garcia-0adilla, at least 'or purposes o' deter$inin) the le)ality o' the arrest (ithout a
(arrant o' petitioner Ceo)racias 7spiritu.
: (ould respect'ully recall to $y learned collea)ues in the Court that Eincitin) to seditionE is de'ined in
;rticle 14! o' the <evised "enal Code in ter$s o' speech
1
and that conseDuently it is i$portant
constantly do distin)uish bet(een speech (hich is protected by the constitutional )uaranty o' 'reedo$ o'
speech and o' the press and speech (hich $ay constitutionally be re)arded as violative o' ;rticle 14! o'
the <evised "enal Code. "recisely because speech (hich the police authorities $i)ht re)ard as seditious
or as cri$inal incitin) to sedition $ay (ell turn out to be only an e9ercise o' a constitutionally )uaranteed
'reedo$, : (ould sub$it that (e $ust apply the concept o' Econtinuin) o''enseE narro(ly 'or purposes o'
application o' Section /2b3, <ule 11 o' the <evised <ules o' Court.
:n $y vie(, the very broad state$ent $ade about Econtinuin) cri$esE in @.<. #o. J1/60 2A$il, et al
v. <a$os3 constitutes dictum, considerin) that <olando Cural and 8ernardo :tucal, Jr. had already
been tried in the court belo( 'or Edouble $urder, etc.E and 'ound )uilty o' the o''ense char)ed,
sentenced accordin)ly, and at least in the case o' <olando Cural, service o' the sentence i$posed
upon hi$ by the trial court had already be)un.
Si$ilarly, in @.<. #o. J/0!0 27spiritu v. %i$3 the state$ent that the arrest o' petitioner 7spiritu
(ithout a (arrant (as in accordance (ith the provisions o' Section /2b3, <ule 11 o' the <evised
<ules o' Court does not appear strictly necessary, considerin) that the petitioner had already been
char)ed in a valid in'or$ation 'iled (ith the co$petent court, (hich court had presu$ably issued an
order 'or his co$$it$ent, and considerin) 'urther that he is entitled to bail.
+here is thus no obstacle, to $y $ind, to a care'ul e9a$ination o' the doctrine o' Econtinuin) cri$esE
as applied to such o''enses as subversion and incitin) to sedition and possibly other o''enses, in
so$e 'uture case (here that issue is raised sDuarely and is unavoidable.
,ortes- ..- concurs.
SARM$ENTO, J., dissentin)*
: be) to di''er 'ro$ $y brethren. : sub$it that habeas corpus lies in all ei)ht cases.
@.<. #o. J1/60
+he $a>ority says that <olando Cural1s arrest (ithout a (arrant is la('ul under the <ules o' Court,
(hich reads*
Sec. /. Arrest without warrant= when lawful. H ; peace o''icer or a private person
$ay, (ithout a (arrant, arrest a person*
2a3 When, in his presence, the person to be arrested has co$$itted, is actually
co$$ittin), or is atte$ptin) to co$$it an o''ense=
2b3 When an o''ense has in 'act >ust been co$$itted, and he has personal
kno(led)e o' 'acts indicatin) that the person to be arrested has co$$itted it= and
2c3 When the person to be arrested is a prisoner (ho has escaped 'ro$ a penal
establish$ent or place (here he is servin) 'inal >ud)$ent or te$porarily con'ined
(hile his case is pendin), or has escaped (hile bein) trans'erred 'ro$ one
con'ine$ent to another.
:n cases 'allin) under para)raphs 2a3 and 2b3 hereo', the person arrested (ithout a (arrant shall be
'orth(ith delivered to the nearest police station or >ail, and he shall be proceeded a)ainst in
accordance (ith <ule 11!, Section 0.
1
E<olando Cural,E so states the $a>ority, E(as arrested 'or bein) a $e$ber o' the #e( "eople1s ;r$y
2#";3, an outla(ed subversive or)anization,E
2
and that EFsGubversion bein) a continuing offense, the
arrest o' <olando Cural (ithout a (arrant is >usti'ied as it can be said that he (as co$$ittin) an o''ense
(hen arrested.E
3
;s : said, : be) to di''er.
First, <olando Cural (as char)ed (ith ECouble &urder (ith ;ssault upon ;)ents o' ;uthority.E
5
:' he
had been )uilty o' subversion H the o''ense 'or (hich he (as supposedly arrested %ia a (arrantless
arrest H subversion (as the lo)ical cri$e (ith (hich he should have been char)ed.
+he authorities could not have ri)htly arrested hi$ 'or subversion on account o' the slay o' the t(o
C;"C6& soldiers, a possible basis 'or violation o' the ;nti-Subversion ;ct, because as the $a>ority
points out, Ehe (as not arrested (hile in the act o' shootin) Fthe$G . . . FnGor (as he arrested >ust
a'ter the co$$ission o' the said o''ense 'or his arrest ca$e a da' after the said shootin) incident.E
9
Second, : do not believe that a (arrantless 2or citizen1s3 arrest is possible in case o' subversion H in
the absence o' any overt act that (ould >usti'y the authorities to act. ESubversion,E as the ter$ is
kno(n in la(, $eans Ekno(in)ly, (il'ully and b' o%ert acts a''iliatFin)G Fonesel'G (ith, beco$Fin)G or
re$ainFin)G a $e$ber o' the Co$$unist "arty o' the "hilippines andBor its successor or o' any
subversion association as de'ined in sections t(o and three hereo'. . . . E
6
%o)ically, the $ilitary could
not have kno(n that Cural, at the ti$e he (as taken, (as a $e$ber o' the #e( "eople1s ;r$y because
he (as not per'or$in) any over act that he (as truly, a rebel. :ndeed, it had to take a Everi'icationE
6
be'ore
he could be identi'ied as alle)edly a $e$ber o' the under)round ar$y. Ander these circu$stances, : a$
hard put to say that he (as co$$ittin) subversion (hen he (as arrested, assu$in) that he (as )uilty o'
subversion, 'or purposes o' a (arrantless arrest.
E6vert actE is $ade up o' EFeGvery act, $ove$ent, deed and (ord o' the
FaccusedG,E
7
indicatin) intent to acco$plish a cri$inal ob>ective. Cural, at the ti$e he
(as arrested, (as lyin) in a hospital bed. +his is not the overt act conte$plated by la(.
Ander the <ule above-Duoted, the person $ust have either been apprehended in flagranti 2'irst
para)raph3 or a'ter the act, provided that the peace o''icer has Epersonal kno(led)eE that he, the
suspect, is )uilty. 2second para)raph.3 ;s : stated, Cural (as not cau)ht in the act. &oreover, (hat
the <e)ional :ntelli)ence 6perations Anit o' the Capital Co$$and 2<:6A-C;"C6&3 had in its
hands (as a $ere Econ'idential in'or$ation.E : do not think that this is the personal kno(led)e
re'erred to by the second para)raph.
2
"lainly and si$ply, it is hearsay.
+he rule, 'urther$ore, on (arrantless arrest is an e9ceptional one. 8y its lan)ua)e, it $ay be
e9ercised only in the $ost ur)ent cases and (hen the )uilt o' an o''ender is plain and evident. What
: think (e have here is purely and si$ply, the $ilitary takin) the la( in its hands.
8y sta$pin) validity to <olando Cural1s (arrantless arrest, : a$ a'raid that the $a>ority has set a
very dan)erous precedent. With all due respect, $y brethren has accorded the $ilitary a blanket
authority to pick up any Juan, "edro, and &aria (ithout a (arrant 'or the si$ple reason that
subversion is supposed to be a continuin) o''ense.
+hat <olando Cural (as arrested 'or bein) a $e$ber o' the #e( "eople1s ;r$yE
9
is 'urther$ore to
$e, a hasty state$ent. :t has yet to be established that Cural is indeed a $e$ber o' the Co$$unist
"arty1s $ilitary ar$. ;nd unless proven )uilty, he is presu$ed, and $ust be presu$ed $ost o' all by this
Court, to be innocent.
+he $a>ority also says that habeas corpus is $oot and acade$ic because Cural has been convicted
and is servin) sentence. : like(ise take e9ception. :t has been held that* E+he (rit $ay be )ranted
upon a >ud)$ent already 'inal.E
10
+he (rit o' liberty is a hi)h prero)ative (rit.
11
?indication o' due process is its historic o''ice.
12
@.<. #os. J4/J1-J!
:n the case o' Wil'redo 8uenaobra, the $a>ority avers that he had E$ani'ested his desire to stay in
the "C-:#" stockade,E
13
'or (hich habeas corpus has supposedly beco$e $oot and acade$ic. : a$ not
convinced that that is reason enou)h to dis$iss habeas corpus as $oot and acade$ic. :t is the duty o'
this Court, in $y opinion, to $ake sure that 8uenaobra has $ade his choice 'reely and voluntarily.
"ersonally, : 'ind it indeed stran)e (hy he should pre'er to stay in >ail than )o scot-'ree.
+here is 'urther no doubt that 8uenaobra1s petition is one i$pressed (ith a public interest. :n one
case
15
(e denied a $otion to (ithdra( a petition 'or habeas corpus in vie( o' its 'ar-reachin) i$portance
to the $otion, : do not see ho( (e should act di''erently, perhaps even insouciantly, here, especially since
it involves persons (ho think and believe di''erently 'ro$ the rest o' us.
8oth 8uenaobra and ;$elia <oDue supposedly ad$itted that they (ere rankin) o''icers o' the
Co$$unist "arty o' the "hilippines. ;ccordin) to the $a>ority, 8uenaobra and <oDue are bound by
their ad$issions.
19
+hat both parties had ad$itted to be $e$bers o' the Co$$unist "arty o' the "hilippines 2the
#ational Anited Front Co$$ission3 is a naked contention o' the $ilitary. +he 'act that it has not been
controverted, in $y vie(, does not >usti'y the couple1s arrest (ithout (arrant. Worse, by relyin) on
the bare (ord o' the $ilitary, this very Court has, to all intents and purposes, conde$ned the duo 'or
a cri$e 2subversion andBor ille)al possession o' 'irear$s3 the bone o' contention, precisely, belo(.
@.<. #os. J4/J-J4
: also 'ind the (arrantless arrests o' Co$in)o ;Tonuevo and <a$on Casiple to be contrary to la(.
+hat they are Ead$ittedly $e$bers o' the standin) co$$ittee o' the #AFCE
16
and that Esubversive
$aterialsE
17
and unlicensed 'irear$s (ere 'ound in their possession, are, like 8uenaobra1s and <oDue1s
cases, barren clai$s o' the $ilitary. : also 'ear that by the $a>ority1s stron) lan)ua)e 2that ;Tonuevo and
Casiple are ad$itted #ACF o''icers3 the $a>ority has pronounced the petitioners )uilty, (hen the lo(er
courts have yet to sit in >ud)$ent. : think (e should be the last to pree$pt the decision o' the trial courts.
We (ould have set to nau)ht the presu$ption o' innocence accused persons en>oy.
@.<. #o. J16!
With respect to the case o' ?icky 6caya, : a$ a'raid that : a$ inclined to(ards the sa$e conclusion.
+here (as basis H at the outset H to say that 6caya (as probably )uilty o' ille)al possession o'
'irear$s. ;s : have observed, a (arrantless arrest $ust be predicated upon the e9istence o' a cri$e
bein) actually co$$itted or havin) been co$$itted. What : 'ind here, rather, is nothin) less than a
success'ul 'ishin) e9pedition conducted by the $ilitary upon an un(ary citizen. : a$ Duite distressed
to note that this is still possible under a supposed de$ocracy.
@.<. #o. J/0!0
Ceo)racias 7spiritu (as 'ast asleep in his house (hen he (as placed under arrest. For the li'e o'
$e, : can not 'i)ure out ho( one can be picked upon in one1s o(n ho$e and held $o$ents later
(ithout a (arrant o' arrest.
7spiritu (as alle)edly )uilty o' incitin) to sedition as a result o' a speech delivered in a press
con'erence at the #ational "ress Club on #ove$ber !1, 19JJ. ,e (as, ho(ever, arrested the day
a'ter, #ove$ber !!, 19JJ. Ander these circu$stances, it eludes $e ho( an arrest (ithout a (arrant
could be >usti'ied, either under para)raph 2a3 or para)raph 2b3 o' the <ule on (arrantless arrests.
+he $a>ority avers that since an in'or$ation had been 'iled (ith the court, 7spiritu1s detention, is
alle)edly >usti'iable. +he Duestion is (hether or not an in'or$ation is an authority to hold a person in
custody. Ander the <ules, an in'or$ation $eans Ean accusation in (ritin) char)in) a person (ith an
o''ense subscribed by the 'iscal and 'iled (ith the court.E
12
:t is not, ho(ever, an order to keep one
under detention.
@.<. #o. J6!
+he o''ense 'or (hich #arciso #azareno is bein) held H the 'atal shootin) o' <o$ulo 8unye :: H
(as co$$itted on Cece$ber 14, 19JJ. :t (as, ho(ever, only on Cece$ber !J, 19JJ that the police
collared a suspect, <a$il <e)ala, (ho subseDuently pointed to #azareno as his acco$plice. :t also
escapes $e ho( #azareno, under these circu$stances, could have been validly put under arrest
(ithout a (arrant or the e9istence o' the circu$stance described under either para)raph 2a3 or 2b3 o'
the <ule above-Duoted* +he cri$e had lon) been co$$itted prior to the arrest.
@.<. #os. J1/60= J4/J1-J!= J4/J-J4= J16!=
J/0!0 M J6!= "ostscripts
+he $a>ority has disposed o' these cases on the bedrock o' (hat : vie( as doctrines that have lost
their luster*
1. +he teachin) o' Garcia-0adilla %. Enrile,
19
(hich held that subversion is a continuin) o''ense=
!. +he rulin) in 3lagan %. Enrile.
20
: also 'ind, 'or reasons to be set 'orth hereina'ter, a )lossin) over o' the 'unda$ental ri)hts o' the
petitioners under the Constitution in the authorities1 handlin) o' the petitioners1 cases.
: hold that Garcia-0adilla is no lon)er )ood la( under the present Constitution. +(o reasons
persuade $e. First, it is repu)nant to due process o' la(. 2E+he arrest, there'ore, need not 'ollo( the
usual procedure in the prosecution o' o''enses (hich reDuire the deter$ination by a >ud)e o' the
e9istence o' probable cause be'ore the issuance o' a >udicial (arrant o' arrest and the )rantin) o'
bail i' the o''ense is bailable.E
21
Ander the 19J0 Constitution, not even EFaG state o' $artial la(
suspendFsG the operation o' Fthe CharterG. . .E
22
Second, it leaves the liberty o' citizens to the (hi$ o' one
$an 2E6n these occasions Fthe e9istence o' a state o' e$er)encyG, the "resident takes absolute
co$$and, 'or the very li'e o' the #ation and its )overn$ent, (hich, incidentally, includes the courts, is in
)rave peril. :n so doin), the "resident is ans(erable only to his conscience, the people and to @od. For
their part, in )ivin) hi$ the supre$e $andate as their "resident, the people can only trust and pray that,
)ivin) hi$ their o(n loyalty and (ithout patriotis$, the "resident (ill not 'ail the$.E
23
3 Ander the Charter
no( prevailin), the Chie' 79ecutive shares, to a certain e9tent, the e9ercise o' e$er)ency po(ers, (ith
Con)ress.
25
;s a la( advocate under the re)i$e o' &arcos, : had challen)ed the soundness o' Garcia-0adilla. :
doubted (hether it could stand up under the ae)is o' the 190 Constitution. : still doubt (hether it
can (ithstand scrutiny under the 19J0 Constitution.
+he $a>ority also 'ails to point out that si9 days a'ter @arcia-"adilla (as handed do(n, the Court
pro$ul)atedMorales- .r. %. Enrile,
29
a case that in $y vie( has si)ni'icantly (hittled do(n Garcia-
0adillaIs very esse. :n that case, &r. Justice ,er$o)enes Concepcion, Jr. (rote 'or the $a>ority*
999 999 999
16. ;'ter a person is arrested . . . (ithout a (arrant . . . the proper co$plaint or
in'or$ation a)ainst hi$ $ust be 'iled (ith the courts o' >ustice (ithin the ti$e
prescribed by la(. . .
10. Failure o' the public o''icer to do so (ithout any valid reason (ould constitute a
violation o' ;rt. 1!/, <evised "enal Code, as a$ended. ;nd the person detained
(ould be entitled to be released on a (rit o' habeas corpus, unless he is detained
under subsistin) process issued by a co$petent court.
26
: also )ather 'ro$ the records that none o' the petitioners had been* 213 in'or$ed o' their ri)ht to
re$ain silent= and 2!3 to have co$petent and independent counsel.
27
;s : said, the $a>ority is denyin) habeas corpus on sel'-servin) clai$s o' the $ilitary that the
petitioners 2Cural, 8uenaobra, <oDue, ;Tonuevo, and Casiple3 are $e$bers o' the Co$$unist
"arty o' the "hilippines H and that they have supposedly con'essed to be in 'act $e$bers o' the
outla(ed or)anization. +he Duestion that has not been ans(ered is (hether or not these supposed
con'essions are ad$issible, 'or purposes o' a (arrantless arrest, as evidence o' )uilt, in the absence
o' any sho(in) that they (ere apprised o' their constitutional ri)hts. : a$ perturbed by the silence o'
the $a>ority. : a$ distressed because as (e held in one case, violation o' the Constitution divests
the court o' >urisdiction and entitles the accused to habeas corpus.
22
;ccordin) to the $a>ority, a Ere-e9a$ination or re-appraisal . . . o'
the :la)an doctrine is not the ans(er.E
29
:n $y considered opinion, 3lagan %. Enrile
30
does not ri)ht'ully
belon) in the volu$es o' "hilippine >urisprudence. :n that case, the petitioners, three Cavao-based
la(yers, (ere held by virtue o' a si$ple in'or$ation 2Ethe petition herein has been rendered $oot and
acade$ic by virtue o' the 'ilin) o' an :n'or$ation a)ainst the$ 'or <ebellion . . . and the issuance o' a
Warrant o' ;rrest a)ainst the$E
31
3 (ithout any preli$inary investi)ation 2e9a$ination3 havin) been
previously conducted 2to >usti'y the issuance o' a (arrant3.i EtEc-aUsl ;s : have stated, an in'or$ation is not a
(arrant o' arrest. +he 'act that an in'or$ation e9ists does not $ean that a (arrant (ill be issued.
;ccused persons have the ri)ht o' preli$inary investi)ation 2e9a$ination3.
32
:t 'or$s part and parcel
o' due process o' la( .
33
: 'ind the $a>ority1s reliance on ;.S. %. *ilson,
35
an ancient 2195/3 decision, inapt and untenable. :n
that case, the accused had been served (ith a (arrant and therea'ter taken into custody. +he Duestion
that 'aced the Court (as (hether or not the (arrant (as valid, a$id the accused1s char)es that the >ud)e
(ho issued it did not e9a$ine the co$plainant under oath. We held that the Duery (as acade$ic,
because the accused had already pleaded, and the case had entered the trial sta)e.
+he cases at bar are not on all 'ours. ,ere, no (arrant has been issued. : sub$it that in that event,
the petitioners are entitled to 'reedo$ by (ay o' the (rit o' liberty.
999 999 999
+he apprehensions in Duestion chronicle in $y $ind the increasin) pattern o' arrests and detention
in the country (ithout the sanction o' a >udicial decree. Four years a)o at E7CS;E, and $any years
be'ore it, althou)h (ith $uch 'e(er o' us, (e valiantly challen)ed a dictator and all the evils his
re)i$e had stood 'or* repression o' civil liberties and tra$plin) on o' hu$an ri)hts. We set up a
popular )overn$ent, restored its honored institutions, and cra'ted a de$ocratic constitution that
rests on the )uideposts o' peace and 'reedo$. : 'eel that (ith this Court1s rulin), (e have 'rittered
a(ay, by a stroke o' the pen, (hat (e had so painstakin)ly built in 'our years o' de$ocracy, and
al$ost t(enty years o' stru))le a)ainst tyranny.
:t also occurs to $e that : a$ interposin) (hat loo$s as a Dui9otic outlook o' "hilippine la( on
(arrantless arrests and its i$plications on liberty. :t is an i$pression that does not surprise $e.
Lui9otic as they $ay see$, and $odesty aside, $y vie(s re'lect a stron) bias on $y part H 'or)ed
by years o' e9perience and sharpened by a pain'ul and lonely stru))le 'or 'reedo$ and >ustice H
to(ard $en and (o$en (ho challen)e settled belie's. :' this dissent can not )ain any adherent 'or
no(, let it nevertheless )o on record as a plea to posterity and an appeal 'or tolerance o' opinions
(ith (hich (e not only disa)ree, but opinions (e loathe.
: 'eel it is $y duty to articulate this dissent.
NNNNNNNNNN
Re&ub#i* o1 t,e P,i#i&&ines
"BPR?(? %@BR+
(ani#a
?N I'N%
SOCIAL J7STICE SOCIETY (SJS), G.R. N. :;<=<2
Petitioner,
! versus !
5ANGERO7S 5R7GS BOAR5 and
PHILIPPINE 5R7G EN4ORCEMENT
AGENCY (P5EA),
Res&ondents.
G!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!G
ATTY. MAN7EL J. LASERNA, JR., G.R. N. :;=>11
Petitioner,
! versus !
5ANGERO7S 5R7GS BOAR5 and
PHILIPPINE 5R7G EN4ORCEMENT
AGENCY,
Res&ondents.
G!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!G
A87ILINO 8. PIMENTEL, JR., G.R. N. :>:>;=
Petitioner,
Present:
PBN@, C.
J.,
QB;"B(I;NG,
N'R?"!"'N+;'G@,
%'RP;@,
'B"+R;'!('R+;N?R,
! versus ! %@R@N',
%'RP;@ (@R'7?",
'R%BN',
+;NG',
%:;%@!N'R'R;@,
<?7'"%@, JR.,
N'%:BR',
R??",
7?@N'RD@!D? %'"+R@, and
IR;@N, JJ.
COMMISSION ON ELECTIONS, Promu#gated:
Res&ondent.
November 3, .//8
G!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!G
5 E C I S I O N
VELASCO, JR., J.9
;n t,ese 3indred &etitions, t,e *onstitutiona#it6 o1 "e*tion 36 o1 Re&ub#i* '*t
No. 8R'9 9165, ot,er2ise 3no2n as t,eComprehensive :angerous :rugs ;!t o
<==<, inso1ar as it reFuires mandator6 drug testing o1 *andidates 1or &ub#i* o11i*e,
students o1 se*ondar6 and tertiar6 s*,oo#s, o11i*ers and em&#o6ees o1 &ub#i* and
&rivate o11i*es, and &ersons *,arged be1ore t,e &rose*utorAs o11i*e 2it, *ertain
o11enses, among ot,er &ersona#ities, is &ut in issue.
's 1ar as &ertinent, t,e *,a##enged se*tion reads as 1o##o2s:
"?%. 36. ;uthori(ed :rug -esting.S'ut,ori$ed drug testing s,a## be done
b6 an6 government 1orensi* #aboratories or b6 an6 o1 t,e drug testing #aboratories
a**redited and monitored b6 t,e D@: to sa1eguard t,e Fua#it6 o1 t,e test
resu#ts. G G G +,e drug testing s,a## em&#o6, among ot,ers, t2o 8.9 testing
met,ods, t,e s*reening test 2,i*, 2i## determine t,e &ositive resu#t as 2e## as t,e
t6&e o1 drug used and t,e *on1irmator6 test 2,i*, 2i## *on1irm a &ositive
s*reening test. G G G +,e 1o##o2ing s,a## be sub)e*ted to undergo drug testing:
G G G G
8*9 "tudents o1 se*ondar6 and tertiar6 s*,oo#s.S"tudents o1 se*ondar6
and tertiar6 s*,oo#s s,a##, &ursuant to t,e re#ated ru#es and regu#ations as
*ontained in t,e s*,oo#As student ,andboo3 and 2it, noti*e to t,e &arents,
undergo a random drug testing G G GH
8d9 @11i*ers and em&#o6ees o1 &ub#i* and &rivate o11i*es.S@11i*ers and
em&#o6ees o1 &ub#i* and &rivate o11i*es, 2,et,er domesti* or overseas, s,a## be
sub)e*ted to undergo a random drug test as *ontained in t,e *om&an6As 2or3 ru#es
and regu#ations, G G G 1or &ur&oses o1 redu*ing t,e ris3 in t,e 2or3&#a*e. 'n6
o11i*er or em&#o6ee 1ound &ositive 1or use o1 dangerous drugs s,a## be dea#t 2it,
administrative#6 2,i*, s,a## be a ground 1or sus&ension or termination, sub)e*t to
t,e &rovisions o1 'rti*#e .8. o1 t,e 7abor %ode and &ertinent &rovisions o1 t,e
%ivi# "ervi*e 7a2H
G G G G
819 '## &ersons *,arged be1ore t,e &rose*utorAs o11i*e 2it, a *rimina#
o11ense ,aving an im&osab#e &ena#t6 o1 im&risonment o1 not #ess t,an siG 869
6ears and one 819 da6 s,a## undergo a mandator6 drug testH
8g9 '## *andidates 1or &ub#i* o11i*e 2,et,er a&&ointed or e#e*ted bot, in
t,e nationa# or #o*a# government s,a## undergo a mandator6 drug test.
;n addition to t,e above stated &ena#ties in t,is "e*tion, t,ose 1ound to be
&ositive 1or dangerous drugs use s,a## be sub)e*t to t,e &rovisions o1 "e*tion 15 o1
t,is '*t.
G.R. N. :>:>;= 8;#uilino >. 9imentel) Jr. v. Commission on ?le!tions9
@n De*ember .3, .//3, t,e %ommission on ?#e*tions 8%@(?7?%9 issued
Reso#ution No. 6086, &res*ribing t,e ru#es and regu#ations on t,e mandator6 drug
testing o1 *andidates 1or &ub#i* o11i*e in *onne*tion 2it, t,e (a6 1/,
.//0 s6n*,roni$ed nationa# and #o*a# e#e*tions. +,e &ertinent &ortions o1 t,e said
reso#ution read as 1o##o2s:
>:?R?'", "e*tion 36 8g9 o1 Re&ub#i* '*t No. 9165 &rovides:
"?%. 36. ;uthori(ed :rug -esting.SG G G
G G G G
8g9 '## *andidates 1or &ub#i* o11i*e G G G bot, in t,e nationa# or #o*a#
government &%a,, +nder! a )anda#r' dr+! #e&#.
>:?R?'", "e*tion 1, 'rti*#e C; o1 t,e 198- %onstitution &rovides t,at
&ub#i* o11i*ers and em&#o6ees must at a## times be a**ountab#e to t,e &eo&#e,
serve t,em 2it, utmost res&onsibi#it6, integrit6, #o6a#t6 and e11i*ien*6H
>:?R?'", b6 reFuiring *andidates to undergo mandator6 drug test, t,e
&ub#i* 2i## 3no2 t,e Fua#it6 o1 *andidates t,e6 are e#e*ting and t,e6 2i## be
assured t,at on#6 t,ose 2,o *an serve 2it, utmost res&onsibi#it6, integrit6,
#o6a#t6, and e11i*ien*6 2ou#d be e#e*ted G G G.
N@> +:?R?=@R?, +,e 4%@(?7?%5, &ursuant to t,e aut,orit6 vested
in it under t,e %onstitution, Iatas Pambansa I#g. 881 8@mnibus ?#e*tion %ode9,
4R'5 9165 and ot,er e#e*tion #a2s, R?"@7<?D to &romu#gate, as it ,ereb6
&romu#gates, t,e 1o##o2ing ru#es and regu#ations on t,e *ondu*t o1 mandator6
drug testing to *andidates 1or &ub#i* o11i*e4:5
"?%+;@N 1. Coverage.SA,, cand"da#e& $r (+-,"c $$"ce, -#% na#"na,
and ,ca,, "n #%e Ma' :2, 622? S'nc%rn"@ed Na#"na, and Lca,
E,ec#"n& s,a## undergo mandator6 drug test in government 1orensi* #aboratories
or an6 drug testing #aboratories monitored and a**redited b6 t,e De&artment o1
:ea#t,.
"?%. 3. G G G
@n (ar*, .5, .//0, in addition to t,e drug *erti1i*ates 1i#ed 2it, t,eir
res&e*tive o11i*es, t,e %ome#e* @11i*es and em&#o6ees *on*erned s,a## submit to
t,e 7a2 De&artment t2o 8.9 se&arate #ists o1 *andidates. +,e 1irst #ist s,a## *onsist
o1 t,ose *andidates 2,o *om&#ied 2it, t,e mandator6 drug test 2,i#e t,e se*ond
#ist s,a## *onsist o1 t,ose *andidates 2,o 1ai#ed to *om G G G.
"?%. 0. 9reparation and publi!ation o names o !andidates.SIe1ore t,e
start o1 t,e *am&aign &eriod, t,e 4%@(?7?%5 s,a## &re&are t2o se&arate #ists o1
*andidates. +,e 1irst #ist s,a## *onsist o1 t,ose *andidates 2,o *om&#ied 2it, t,e
mandator6 drug test 2,i#e t,e se*ond #ist s,a## *onsist o1 t,ose *andidates 2,o
1ai#ed to *om 2it, said drug test. G G G
"?%. 5. ?e!t o ailure to undergo mandatory drug test and ile drug test
!ertii!ate.SNo &erson e#e*ted to an6 &ub#i* o11i*e s,a## enter u&on t,e duties o1
,is o11i*e unti# ,e ,as undergone mandator6 drug test and 1i#ed 2it, t,e o11i*es
enumerated under "e*tion . ,ereo1 t,e drug test *erti1i*ate ,erein
reFuired. 8?m&,asis su&&#ied.9
Petitioner 'Fui#ino Q. Pimente#, Jr., a senator o1 t,e Re&ub#i* and a
*andidate 1or re!e#e*tion in t,e (a6 1/, .//0 e#e*tions,
415
1i#ed a Petition 1or
%ertiorari and Pro,ibition under Ru#e 65. ;n it, ,e see3s 819 to nu##i16 "e*. 368g9 o1
R' 9165 and %@(?7?% Reso#ution No. 6086 dated De*ember .3, .//3 1or being
un*onstitutiona# in t,at t,e6 im&ose a Fua#i1i*ation 1or *andidates 1or senators in
addition to t,ose a#read6 &rovided 1or in t,e 198- %onstitutionH and 8.9 to en)oin
t,e %@(?7?% 1rom im&#ementing Reso#ution No. 6086.
Pimente# invo3es as #ega# basis 1or ,is &etition "e*. 3, 'rti*#e <; o1 t,e
%onstitution, 2,i*, states:
"?%+;@N 3. No &erson s,a## be a "enator un#ess ,e is a natura#!born
*iti$en o1 t,e P,i#i&&ines, and, on t,e da6 o1 t,e e#e*tion, is at #east t,irt6!1ive
6ears o1 age, ab#e to read and 2rite, a registered voter, and a resident o1 t,e
P,i#i&&ines 1or not #ess t,an t2o 6ears immediate#6 &re*eding t,e da6 o1 t,e
e#e*tion.
'**ording to Pimente#, t,e %onstitution on#6 &res*ribes a maGimum o1 1ive
859 Fua#i1i*ations 1or one to be a *andidate 1or, e#e*ted to, and be a member o1 t,e
"enate. :e sa6s t,at bot, t,e %ongress and %@(?7?%, b6 reFuiring, via R'
9165 and Reso#ution No. 6086, a senatoria# as&irant, among ot,er *andidates, to
undergo a mandator6 drug test, *reate an additiona# Fua#i1i*ation t,at a## *andidates
1or senator must 1irst be *erti1ied as drug 1ree. :e adds t,at t,ere is no &rovision in
t,e %onstitution aut,ori$ing t,e %ongress or %@(?7?% to eG&and t,e
Fua#i1i*ation reFuirements o1 *andidates 1or senator.
G.R. N. :;<=<2 8So!ial Justi!e So!iety v. :angerous
:rugs 2oard and 9hilippine :rug ?nor!ement ;gen!y9
;n its Petition 1or Pro,ibition under Ru#e 65, &etitioner "o*ia# Justi*e "o*iet6
8"J"9, a registered &o#iti*a# &art6, see3s to &ro,ibit t,e Dangerous Drugs Ioard
8DDI9 and t,e P,i#i&&ine Drug ?n1or*ement 'gen*6 8PD?'9 1rom en1or*ing
&aragra&,s 8*9, 8d9, 819, and 8g9 o1 "e*. 36 o1 R' 9165 on t,e ground t,at t,e6 are
*onstitutiona##6 in1irm. =or one, t,e &rovisions *onstitute undue de#egation o1
#egis#ative &o2er 2,en t,e6 give unbrid#ed dis*retion to s*,oo#s and em&#o6ers to
determine t,e manner o1 drug testing. =or anot,er, t,e &rovisions tren*, in t,e
eFua# &rote*tion *#ause inasmu*, as t,e6 *an be used to ,arass a student or an
em&#o6ee deemed undesirab#e. 'nd 1or a t,ird, a &ersonAs *onstitutiona# rig,t
against unreasonab#e sear*,es is a#so brea*,ed b6 said &rovisions.
G.R. N. :;=>11 8;tty. *anuel J. Laserna) Jr. v. :angerous
:rugs 2oard and 9hilippine :rug ?nor!ement ;gen!y9
Petitioner 'tt6. (anue# J. 7aserna, Jr., as *iti$en and taG&a6er, a#so see3s in
,is Petition 1or %ertiorari and Pro,ibition under Ru#e 65 t,at "e*. 368*9, 8d9, 819,
and 8g9 o1 R' 9165 be stru*3 do2n as un*onstitutiona# 1or in1ringing on t,e
*onstitutiona# rig,t to &riva*6, t,e rig,t against unreasonab#e sear*, and sei$ure,
and t,e rig,t against se#1!in*rimination, and 1or being *ontrar6 to t,e due &ro*ess
and eFua# &rote*tion guarantees.
T%e I&&+e n (ocus Standi
=irst o11, 2e s,a## address t,e )usti*iabi#it6 o1 t,e *ases at ben*, and t,e
matter o1 t,e standing o1 &etitioners "J" and 7aserna to sue. 's res&ondents DDI
and PD?' assert, "J" and 7aserna 1ai#ed to a##ege an6 in*ident amounting to a
vio#ation o1 t,e *onstitutiona# rig,ts mentioned in t,eir se&arate &etitions.
4.5
;t is basi* t,at t,e &o2er o1 )udi*ia# revie2 *an on#6 be eGer*ised in
*onne*tion 2it, a bona ide *ontrovers6 2,i*, invo#ves t,e statute soug,t to be
revie2ed.
435
Iut even 2it, t,e &resen*e o1 an a*tua# *ase or *ontrovers6, t,e %ourt
ma6 re1use to eGer*ise )udi*ia# revie2 un#ess t,e *onstitutiona# Fuestion is broug,t
be1ore it b6 a &art6 ,aving t,e reFuisite standing to *,a##enge it.
405
+o ,ave
standing, one must estab#is, t,at ,e or s,e ,as su11ered some a*tua# or t,reatened
in)ur6 as a resu#t o1 t,e a##eged#6 i##ega# *ondu*t o1 t,e governmentH t,e in)ur6 is
1air#6 tra*eab#e to t,e *,a##enged a*tionH and t,e in)ur6 is #i3e#6 to be redressed b6
a 1avorab#e a*tion.
455
+,e ru#e on standing, ,o2ever, is a matter o1 &ro*edureH ,en*e, it *an be
re#aGed 1or non!traditiona# &#ainti11s, #i3e ordinar6 *iti$ens, taG&a6ers, and
#egis#ators 2,en t,e &ub#i* interest so reFuires, su*, as 2,en t,e matter is o1
trans*endenta# im&ortan*e, o1 overar*,ing signi1i*an*e to so*iet6, or o1 &aramount
&ub#i* interest.
465
+,ere is no doubt t,at Pimente#, as senator o1 t,e P,i#i&&inesand
*andidate 1or t,e (a6 1/, .//0 e#e*tions, &ossesses t,e reFuisite standing sin*e ,e
,as substantia# interests in t,e sub)e*t matter o1 t,e &etition, among ot,er
&re#iminar6 *onsiderations. Regarding "J" and 7aserna, t,is %ourt is 2ont to re#aG
t,e ru#e on lo!us standi o2ing &rimari#6 to t,e trans*endenta# im&ortan*e and t,e
&aramount &ub#i* interest invo#ved in t,e en1or*ement o1 "e*. 36 o1 R' 9165.
T%e Cn&,"da#ed I&&+e&
+,e &rin*i&a# issues be1ore us are as 1o##o2s:
819 Do "e*. 368g9 o1 R' 9165 and %@(?7?% Reso#ution No. 6086 im&ose
an additiona# Fua#i1i*ation 1or *andidates 1or senatorQ %oro##ari#6, *an %ongress
ena*t a #a2 &res*ribing Fua#i1i*ations 1or *andidates 1or senator in addition to t,ose
#aid do2n b6 t,e %onstitutionQ and
8.9 're &aragra&,s 8*9, 8d9, 819, and 8g9 o1 "e*. 36, R' 9165 un*onstitutiona#Q
"&e*i1i*a##6, do t,ese &aragra&,s vio#ate t,e rig,t to &riva*6, t,e rig,t against
unreasonab#e sear*,es and sei$ure, and t,e eFua# &rote*tion *#auseQ @r do t,e6
*onstitute undue de#egation o1 #egis#ative &o2erQ
P")en#e, Pe#"#"n
(Cn&#"#+#"na,"#' $ Sec. 1>A!B $ RA C:>; and
COMELEC Re&,+#"n N. >?=>)
;n essen*e, Pimente# *#aims t,at "e*. 368g9 o1 R' 9165 and %@(?7?%
Reso#ution No. 6086 i##ega##6 im&ose an additiona# Fua#i1i*ation on *andidates 1or
senator. :e &oints out t,at, sub)e*t to t,e &rovisions on nuisan*e *andidates, a
*andidate 1or senator needs on#6 to meet t,e Fua#i1i*ations #aid do2n in "e*. 3, 'rt.
<; o1 t,e %onstitution, to 2it: 819 *iti$ens,i&, 8.9 voter registration, 839 #itera*6, 809
age, and 859 residen*6. Ie6ond t,ese stated Fua#i1i*ation reFuirements, *andidates
1or senator need not &ossess an6 ot,er Fua#i1i*ation to run 1or senator and be voted
u&on and e#e*ted as member o1 t,e "enate. +,e %ongress *annot va#id#6 amend or
ot,er2ise modi16 t,ese Fua#i1i*ation standards, as it *annot disregard, evade, or
2ea3en t,e 1or*e o1 a *onstitutiona# mandate,
4-5
or a#ter or en#arge t,e %onstitution.
Pimente#As *ontention is 2e##!ta3en. '**ording#6, "e*. 368g9 o1 R' 9165
s,ou#d be, as it is ,ereb6 de*#ared as, un*onstitutiona#. ;t is basi* t,at i1 a #a2 or an
administrative ru#e vio#ates an6 norm o1 t,e %onstitution, t,at issuan*e is nu## and
void and ,as no e11e*t. +,e %onstitution is t,e basi* #a2 to 2,i*, a## #a2s must
*on1ormH no a*t s,a## be va#id i1 it *on1#i*ts 2it, t,e %onstitution.
485
;n t,e
dis*,arge o1 t,eir de1ined 1un*tions, t,e t,ree de&artments o1 government ,ave no
*,oi*e but to 6ie#d obedien*e to t,e *ommands o1 t,e %onstitution. >,atever
#imits it im&oses must be observed.
495
%ongressA in,erent #egis#ative &o2ers, broad as t,e6 ma6 be, are sub)e*t to
*ertain #imitations. 's ear#6 as 19.-, in+overnment v. Springer, t,e %ourt ,as
de1ined, in t,e abstra*t, t,e #imits on #egis#ative &o2er in t,e 1o##o2ing 2ise:
"omeone ,as said t,at t,e &o2ers o1 t,e #egis#ative de&artment o1 t,e
Government, #i3e t,e boundaries o1 t,e o*ean, are un#imited. ;n *onstitutiona#
governments, ,o2ever, as 2e## as governments a*ting under de#egated aut,orit6,
t,e &o2ers o1 ea*, o1 t,e de&artments G G G are #imited and *on1ined 2it,in t,e
1our 2a##s o1 t,e *onstitution or t,e *,arter, and ea*, de&artment *an on#6
eGer*ise su*, &o2ers as are ne*essari#6 im&#ied 1rom t,e given &o2ers. +,e
%onstitution is t,e s,ore o1 #egis#ative aut,orit6 against 2,i*, t,e 2aves o1
#egis#ative ena*tment ma6 das,, but over 2,i*, it *annot #ea&.
41/5
+,us, #egis#ative &o2er remains #imited in t,e sense t,at it is sub)e*t to
substantive and *onstitutiona# #imitations 2,i*, *ir*ums*ribe bot, t,e eGer*ise o1
t,e &o2er itse#1 and t,e a##o2ab#e sub)e*ts o1 #egis#ation.
4115
+,e substantive
*onstitutiona# #imitations are *,ie1#6 1ound in t,e Ii## o1 Rig,ts
41.5
and ot,er
&rovisions, su*, as "e*. 3, 'rt. <; o1 t,e %onstitution &res*ribing t,e Fua#i1i*ations
o1 *andidates 1or senators.
;n t,e same vein, t,e %@(?7?% *annot, in t,e guise o1 en1or*ing and
administering e#e*tion #a2s or &romu#gating ru#es and regu#ations to im&#ement
"e*. 368g9, va#id#6 im&ose Fua#i1i*ations on *andidates 1or senator in addition to
2,at t,e %onstitution &res*ribes. ;1 %ongress *annot reFuire a *andidate 1or senator
to meet su*, additiona# Fua#i1i*ation, t,e %@(?7?%, to be sure, is a#so 2it,out
su*, &o2er. +,e rig,t o1 a *iti$en in t,e demo*rati* &ro*ess o1 e#e*tion s,ou#d not
be de1eated b6 un2arranted im&ositions o1 reFuirement not ot,er2ise s&e*i1ied in
t,e %onstitution.
4135
"e*. 368g9 o1 R' 9165, as soug,t to be im&#emented b6 t,e assai#ed
%@(?7?% reso#ution, e11e*tive#6 en#arges t,e Fua#i1i*ation reFuirements
enumerated in t,e "e*. 3, 'rt. <; o1 t,e %onstitution. 's *ou*,ed, said "e*. 368g9
unmista3ab#6 reFuires a *andidate 1or senator to be *erti1ied i##ega#!drug *#ean,
obvious#6 as a &re!*ondition to t,e va#idit6 o1 a *erti1i*ate o1 *andida*6 1or senator
or, 2it, #i3e e11e*t, a *ondition sine #ua non to be voted u&on and, i1 &ro&er, be
&ro*#aimed as senator!e#e*t. +,e %@(?7?% reso#ution *om&#etes t,e *,ain 2it,
t,e &roviso t,at K4n5o &erson e#e*ted to an6 &ub#i* o11i*e s,a## enter u&on t,e duties
o1 ,is o11i*e unti# ,e ,as undergone mandator6 drug test.L <ie2ed, t,ere1ore, in its
&ro&er *onteGt, "e*. 368g9 o1 R' 9165 and t,e im&#ementing %@(?7?%
Reso#ution add anot,er Fua#i1i*ation #a6er to 2,at t,e 198- %onstitution, at t,e
minimum, reFuires 1or members,i& in t,e "enate. >,et,er or not t,e drug!1ree bar
set u& under t,e *,a##enged &rovision is to be ,urd#ed be1ore or a1ter e#e*tion is
rea##6 o1 no moment, as getting e#e*ted 2ou#d be o1 #itt#e va#ue i1 one *annot
assume o11i*e 1or non!*om&#ian*e 2it, t,e drug!testing reFuirement.
;t ma6 o1 *ourse be argued, in de1ense o1 t,e va#idit6 o1 "e*. 368g9 o1 R'
9165, t,at t,e &rovision does not eG&ress#6 state t,at non!*om&#ian*e 2it, t,e drug
test im&osition is a disFua#i16ing 1a*tor or 2ou#d 2or3 to nu##i16 a *erti1i*ate o1
*andida*6. +,is argument ma6 be a**orded &#ausibi#it6 i1 t,e drug test reFuirement
is o&tiona#. Iut t,e &arti*u#ar se*tion o1 t,e #a2, 2it,out eG*e&tion, made drug!
testing on t,ose *overed mandator6, ne*essari#6 suggesting t,at t,e obstinate ones
s,a## ,ave to su11er t,e adverse *onseFuen*es 1or not ad,ering to t,e statutor6
*ommand. 'nd sin*e t,e &rovision dea#s 2it, *andidates 1or &ub#i* o11i*e, it stands
to reason t,at t,e adverse *onseFuen*e adverted to *an on#6 re1er to and revo#ve
around t,e e#e*tion and t,e assum&tion o1 &ub#i* o11i*e o1 t,e *andidates. 'n6
ot,er *onstrua# 2ou#d redu*e t,e mandator6 nature o1 "e*. 368g9 o1 R' 9165 into a
&ure )argon 2it,out meaning and e11e*t 2,atsoever.
>,i#e it is anti!*#ima*ti* to state it at t,is )un*ture, %@(?7?% Reso#ution
No. 6086 is no #onger en1or*eab#e, 1or b6 its terms, it 2as intended to *over on#6
t,e (a6 1/, .//0 s6n*,roni$ed e#e*tions and t,e *andidates running in t,at
e#e*tora# event. Nonet,e#ess, to obviate re&etition, t,e %ourt deems it a&&ro&riate
to revie2 and ru#e, as it ,ereb6 ru#es, on its va#idit6 as an im&#ementing issuan*e.
;t oug,t to be made abundant#6 *#ear, ,o2ever, t,at t,e un*onstitutiona#it6 o1
"e*. 368g9 o1 R' 9165 is rooted on its ,aving in1ringed t,e *onstitutiona# &rovision
de1ining t,e Fua#i1i*ation or e#igibi#it6 reFuirements 1or one as&iring to run 1or and
serve as senator.
SJS Pe#"#"n
(Cn&#"#+#"na,"#' $ Sec. 1>AcB, AdB, A$B, and A!B $ RA C:>;)
+,e drug test &res*ribed under "e*. 368*9, 8d9, and 819 o1 R' 9165 1or
se*ondar6 and tertiar6 #eve# students and &ub#i* and &rivate em&#o6ees, 2,i#e
mandator6, is a random and sus&i*ion#ess arrangement. +,e ob)e*tive is to stam&
out i##ega# drug and sa1eguard in t,e &ro*ess Kt,e 2e## being o1 4t,e5 *iti$enr6,
&arti*u#ar#6 t,e 6out,, 1rom t,e ,arm1u# e11e*ts o1 dangerous drugs.L +,is
statutor6 &ur&ose, &er t,e &o#i*6!de*#aration &ortion o1 t,e #a2, *an be a*,ieved via
t,e &ursuit b6 t,e state o1 Kan intensive and unre#enting *am&aign against t,e
tra11i*3ing and use o1 dangerous drugs G G G t,roug, an integrated s6stem o1
&#anning, im&#ementation and en1or*ement o1 anti!drug abuse &o#i*ies, &rograms
and &ro)e*ts.L
4105
+,e &rimar6 #egis#ative intent is not *rimina# &rose*ution, as
t,ose 1ound &ositive 1or i##ega# drug use as a resu#t o1 t,is random testing are not
ne*essari#6 treated as *rimina#s. +,e6 ma6 even be eGem&t 1rom *rimina# #iabi#it6
s,ou#d t,e i##ega# drug user *onsent to undergo re,abi#itation. "e*s. 50 and 55 o1
R' 9165 are *#ear on t,is &oint:
"e*. 50. ,oluntary Submission o a :rug :ependent to Coninement)
-reatment and Rehabilitation.S' drug de&endent or an6 &erson 2,o vio#ates
"e*tion 15 o1 t,is '*t ma6, b6 ,imse#1E,erse#1 or t,roug, ,isE,er &arent, 4*#ose
re#atives5 G G G a& to t,e Ioard G G G 1or treatment and re,abi#itation o1 t,e
drug de&enden*6. B&on su*, a&&#i*ation, t,e Ioard s,a## bring 1ort, t,e matter to
t,e %ourt 2,i*, s,a## order t,at t,e a&&#i*ant be eGamined 1or drug
de&enden*6. ;1 t,e eGamination G G G resu#ts in t,e *erti1i*ation t,at t,e a&&#i*ant
is a drug de&endent, ,eEs,e s,a## be ordered b6 t,e %ourt to undergo treatment and
re,abi#itation in a %enter designated b6 t,e Ioard G G G.
G G G G
"e*. 55. ?7emption rom the Criminal Liability @nder the ,oluntary
Submission 9rogram.S' drug de&endent under t,e vo#untar6 submission
&rogram, 2,o is 1ina##6 dis*,arged 1rom *on1inement, s,a## be eGem&t 1rom t,e
*rimina# #iabi#it6 under "e*tion 15 o1 t,is '*t sub)e*t to t,e 1o##o2ing *onditions:
G G G G
"*,oo# *,i#dren, t,e B" "u&reme %ourt noted, are most vu#nerab#e to t,e
&,6si*a#, &s6*,o#ogi*a#, and addi*tive e11e*ts o1 drugs. (aturing nervous s6stems
o1 t,e 6oung are more *riti*a##6 im&aired b6 intoGi*ants and are more in*#ined to
drug de&enden*6. +,eir re*over6 is a#so at a de&ressing#6 #o2 rate.
4155
+,e rig,t to &riva*6 ,as been a**orded re*ognition in t,is )urisdi*tion as a
1a*et o1 t,e rig,t &rote*ted b6 t,e guarantee against unreasonab#e sear*, and
sei$ure
4165
under "e*. ., 'rt. ;;;
41-5
o1 t,e %onstitution. Iut 2,i#e t,e rig,t to &riva*6
,as #ong *ome into its o2n, t,is *ase a&&ears to be t,e 1irst time t,at t,e va#idit6 o1
a state!de*reed sear*, or intrusion t,roug, t,e medium o1 mandator6 random drug
testing among students and em&#o6ees is, in t,is )urisdi*tion, made t,e 1o*a# &oint.
+,us, t,e issue tendered in t,ese &ro*eedings is veritab#6 one o1 1irst im&ression.
B" )uris&ruden*e is, ,o2ever, a ri*, sour*e o1 &ersuasive )uris&ruden*e.
>it, res&e*t to random drug testing among s*,oo# *,i#dren, 2e turn to t,e
tea*,ings o1 ,ernonia S!hool :istri!t ABJ v. ;!ton 8,ernonia9 and 2oard o
?du!ation o Independent S!hool :istri!t %o. C< o 9ottawatomie County, et al. v.
?arls, et al. 82oard o ?du!ation9,
4185
bot, 1air#6 &ertinent B" "u&reme %ourt!
de*ided *ases invo#ving t,e *onstitutiona#it6 o1 governmenta# sear*,.
;n ,ernonia, s*,oo# administrators in <ernonia, @regon 2anted to address
t,e drug mena*e in t,eir res&e*tive institutions 1o##o2ing t,e dis*over6 o1 1reFuent
drug use b6 s*,oo# at,#etes. '1ter *onsu#tation 2it, t,e &arents, t,e6 reFuired
random urina#6sis drug testing 1or t,e s*,oo#As at,#etes. James '*ton, a ,ig,
s*,oo# student, 2as denied &arti*i&ation in t,e 1ootba## &rogram a1ter ,e re1used to
underta3e t,e urina#6sis drug testing. '*ton 1ort,2it, sued, *#aiming t,at t,e
s*,oo#As drug testing &o#i*6 vio#ated, inter alia, t,e =ourt, 'mendment
4195
o1 t,e
B" %onstitution.
+,e B" "u&reme %ourt, in 1as,ioning a so#ution to t,e issues raised
in ,ernonia, *onsidered t,e 1o##o2ing: 819 s*,oo#s standin lo!o parentis over t,eir
studentsH 8.9 s*,oo# *,i#dren, 2,i#e not s,edding t,eir *onstitutiona# rig,ts at t,e
s*,oo# gate, ,ave #ess &riva*6 rig,tsH 839 at,#etes ,ave #ess &riva*6 rig,ts t,an non!
at,#etes sin*e t,e 1ormer observe *ommuna# undress be1ore and a1ter s&orts eventsH
809 b6 )oining t,e s&orts a*tivit6, t,e at,#etes vo#untari#6 sub)e*ted t,emse#ves to a
,ig,er degree o1 s*,oo# su&ervision and regu#ationH 859 reFuiring urine sam&#es
does not invade a studentAs &riva*6 sin*e a student need not undress 1or t,is 3ind o1
drug testingH and 869 t,ere is need 1or t,e drug testing be*ause o1 t,e dangerous
e11e*ts o1 i##ega# drugs on t,e 6oung. +,e B" "u&reme %ourt ,e#d t,at t,e &o#i*6
*onstituted reasonab#e sear*, under t,e =ourt,
4./5
and 10t, 'mendments and
de*#ared t,e random drug!testing &o#i*6 *onstitutiona#.
;n 2oard o ?du!ation, t,e Ioard o1 ?du*ation o1 a s*,oo#
in +e*umse,, @3#a,oma reFuired a drug test 1or ,ig, s*,oo# students desiring to
)oin eGtra!*urri*u#ar a*tivities. 7indsa6 ?ar#s, a member o1 t,e s,o2 *,oir,
mar*,ing band, and a*ademi* team de*#ined to undergo a drug test and averred t,at
t,e drug!testing &o#i*6 made to a& to non!at,#etes vio#ated t,e =ourt, and 10t,
'mendments. 's ?ar#s argued, un#i3e at,#etes 2,o routine#6 undergo &,6si*a#
eGaminations and undress be1ore t,eir &eers in #o*3er rooms, non!at,#etes are
entit#ed to more &riva*6.
+,e B" "u&reme %ourt, *iting ,ernonia, u&,e#d t,e *onstitutiona#it6 o1 drug
testing even among non!at,#etes on t,e basis o1 t,e s*,oo#As *ustodia#
res&onsibi#it6 and aut,orit6. ;n so ru#ing, said *ourt made no distin*tion bet2een a
non!at,#ete and an at,#ete. ;t ratio*inated t,at s*,oo#s and tea*,ers a*t in &#a*e o1
t,e &arents 2it, a simi#ar interest and dut6 o1 sa1eguarding t,e ,ea#t, o1 t,e
students. 'nd in ,o#ding t,at t,e s*,oo# *ou#d im&#ement its random drug!testing
&o#i*6, t,e %ourt ,inted t,at su*, a test 2as a 3ind o1 sear*, in 2,i*, even a
reasonab#e &arent mig,t need to engage.
;n sum, 2,at *an reasonab#6 be dedu*ed 1rom t,e above t2o *ases and
a&&#ied to t,is )urisdi*tion are: 819 s*,oo#s and t,eir administrators stand in lo!o
parentis 2it, res&e*t to t,eir studentsH 8.9 minor students ,ave *onteGtua##6 1e2er
rig,ts t,an an adu#t, and are sub)e*t to t,e *ustod6 and su&ervision o1 t,eir &arents,
guardians, and s*,oo#sH 839 s*,oo#s, a*ting in lo!o parentis, ,ave a dut6 to
sa1eguard t,e ,ea#t, and 2e##!being o1 t,eir students and ma6 ado&t su*, measures
as ma6 reasonab#6 be ne*essar6 to dis*,arge su*, dut6H and 809 s*,oo#s ,ave t,e
rig,t to im&ose *onditions on a&&#i*ants 1or admission t,at are 1air, )ust, and non!
dis*riminator6.
Guided b6 ,ernonia and 2oard o ?du!ation, t,e %ourt is o1 t,e vie2 and so
,o#ds t,at t,e &rovisions o1 R' 9165 reFuiring mandator6, random, and
sus&i*ion#ess drug testing o1 students are *onstitutiona#. ;ndeed, it is 2it,in t,e
&rerogative o1 edu*ationa# institutions to reFuire, as a *ondition 1or admission,
*om&#ian*e 2it, reasonab#e s*,oo# ru#es and regu#ations and &o#i*ies. +o be sure,
t,e rig,t to enro## is not abso#uteH it is sub)e*t to 1air, reasonab#e, and eFuitab#e
reFuirements.
+,e %ourt *an ta3e )udi*ia# noti*e o1 t,e &ro#i1eration o1 &ro,ibited drugs in
t,e *ountr6 t,at t,reatens t,e 2e##!being o1 t,e &eo&#e,
4.15
&arti*u#ar#6 t,e 6out, and
s*,oo# *,i#dren 2,o usua##6 end u& as vi*tims. '**ording#6, and unti# a more
e11e*tive met,od is *on*e&tua#i$ed and &ut in motion, a random drug testing o1
students in se*ondar6 and tertiar6 s*,oo#s is not on#6 a**e&tab#e but ma6 even be
ne*essar6 i1 t,e sa1et6 and interest o1 t,e student &o&u#ation, doubt#ess a #egitimate
*on*ern o1 t,e government, are to be &romoted and &rote*ted. +o borro2
1rom ,ernonia, K4d5eterring drug use b6 our NationAs s*,oo#*,i#dren is as
im&ortant as en,an*ing e11i*ient en1or*ement o1 t,e NationAs #a2s against t,e
im&ortation o1 drugsLH t,e ne*essit6 1or t,e "tate to a*t is magni1ied b6 t,e 1a*t t,at
t,e e11e*ts o1 a drug!in1ested s*,oo# are visited not )ust u&on t,e users, but u&on
t,e entire student bod6 and 1a*u#t6.
4..5
Need#ess to stress, t,e random testing
s*,eme &rovided under t,e #a2 argues against t,e idea t,at t,e testing aims to
in*riminate unsus&e*ting individua# students.
Just as in t,e *ase o1 se*ondar6 and tertiar6 #eve# students, t,e mandator6 but
random drug test &res*ribed b6 "e*. 36 o1 R' 9165 1or o11i*ers and em&#o6ees o1
&ub#i* and &rivate o11i*es is )usti1iab#e, a#beit not eGa*t#6 1or t,e same reason. +,e
%ourt notes in t,is regard t,at &etitioner "J", ot,er t,an sa6ing t,at Ksub)e*ting
a#most ever6bod6 to drug testing, 2it,out &robab#e *ause, is unreasonab#e, an
un2arranted intrusion o1 t,e individua# rig,t to &riva*6,L
4.35
,as 1ai#ed to s,o2 ,o2
t,e mandator6, random, and sus&i*ion#ess drug testing under "e*. 368*9 and 8d9 o1
R' 9165 vio#ates t,e rig,t to &riva*6 and *onstitutes un#a21u# andEor un*onsented
sear*, under 'rt. ;;;, "e*s. 1 and . o1 t,e %onstitution.
4.05
Petitioner 7asernaAs
#ament is )ust as sim&#isti*, s2ee&ing, and gratuitous and does not merit serious
*onsideration. %onsider 2,at ,e 2rote 2it,out e#aboration:
+,e B" "u&reme %ourt and B" %ir*uit %ourts o1 '&&ea#s ,ave made
various ru#ings on t,e *onstitutiona#it6 o1 mandator6 drug tests in t,e s*,oo# and
t,e 2or3&#a*es. +,e B" *ourts ,ave been *onsistent in t,eir ru#ings t,at t,e
mandator6 drug tests vio#ate a *iti$enAs *onstitutiona# rig,t to &riva*6 and rig,t
against unreasonab#e sear*, and sei$ure. +,e6 are Fuoted eGtensive#6
,ereinbe#o2.
4.55
+,e essen*e o1 &riva*6 is t,e rig,t to be #e1t a#one.
4.65
;n *onteGt, t,e rig,t to
&riva*6 means t,e rig,t to be 1ree 1rom un2arranted eG&#oitation o1 oneAs &erson or
1rom intrusion into oneAs &rivate a*tivities in su*, a 2a6 as to *ause ,umi#iation to
a &ersonAs ordinar6 sensibi#ities.
4.-5
'nd 2,i#e t,ere ,as been genera# agreement
as to t,e basi* 1un*tion o1 t,e guarantee against un2arranted sear*,, Ktrans#ation o1
t,e abstra*t &ro,ibition against Tunreasonab#e sear*,es and sei$uresA into 2or3ab#e
broad guide#ines 1or t,e de*ision o1 &arti*u#ar *ases is a di11i*u#t tas3,L to borro2
1rom C. Camara v. *uni!ipal Court.
4.85
'ut,orities are agreed t,oug, t,at t,e
rig,t to &riva*6 6ie#ds to *ertain &aramount rig,ts o1 t,e &ub#i* and de1ers to t,e
stateAs eGer*ise o1 &o#i*e &o2er.
4.95
's t,e 2arrant#ess *#ause o1 "e*. ., 'rt ;;; o1 t,e %onstitution is *ou*,ed
and as ,as been ,e#d, Kreasonab#enessL is t,e tou*,stone o1 t,e va#idit6 o1 a
government sear*, or intrusion.
43/5
'nd 2,et,er a sear*, at issue ,e2s to t,e
reasonab#eness standard is )udged b6 t,e ba#an*ing o1 t,e government!mandated
intrusion on t,e individua#As &riva*6 interest against t,e &romotion o1 some
*om&e##ing state interest.
4315
;n t,e *rimina# *onteGt, reasonab#eness reFuires
s,o2ing o1 &robab#e *ause to be &ersona##6 determined b6 a )udge. Given t,at t,e
drug!testing &o#i*6 1or em&#o6eesJJand students 1or t,at matterJJunder R' 9165
is in t,e nature o1 administrative sear*, needing 2,at 2as re1erred to
in ,ernonia as Ks2i1t and in1orma# dis*i&#inar6 &ro*edures,L t,e &robab#e!*ause
standard is not reFuired or even &ra*ti*ab#e. Ie t,at as it ma6, t,e revie2 s,ou#d
1o*us on t,e reasonab#eness o1 t,e *,a##enged administrative sear*, in Fuestion.
+,e 1irst 1a*tor to *onsider in t,e matter o1 reasonab#eness is t,e nature o1
t,e &riva*6 interest u&on 2,i*, t,e drug testing, 2,i*, e11e*ts a sear*, 2it,in t,e
meaning o1 "e*. ., 'rt. ;;; o1 t,e %onstitution, intrudes. ;n t,is *ase, t,e o11i*e or
2or3&#a*e serves as t,e ba*3dro& 1or t,e ana#6sis o1 t,e &riva*6 eG&e*tation o1 t,e
em&#o6ees and t,e reasonab#eness o1 drug testing reFuirement. +,e em&#o6eesA
&riva*6 interest in an o11i*e is to a #arge eGtent *ir*ums*ribed b6 t,e *om&an6As
2or3 &o#i*ies, t,e *o##e*tive bargaining agreement, i1 an6, entered into b6
management and t,e bargaining unit, and t,e in,erent rig,t o1 t,e em&#o6er to
maintain dis*i&#ine and e11i*ien*6 in t,e 2or3&#a*e. +,eir &riva*6 eG&e*tation in a
regu#ated o11i*e environment is, in 1ine, redu*edH and a degree o1 im&ingement
u&on su*, &riva*6 ,as been u&,e#d.
Just as de1ining as t,e 1irst 1a*tor is t,e *,ara*ter o1 t,e intrusion aut,ori$ed
b6 t,e *,a##enged #a2. Redu*ed to a Fuestion 1orm, is t,e s*o&e o1 t,e sear*, or
intrusion *#ear#6 set 1ort,, or, as 1ormu#ated in Ople v. -orres, is t,e enab#ing #a2
aut,ori$ing a sear*, Knarro2#6 dra2nL or Knarro2#6 1o*usedLQ
43.5
+,e &oser s,ou#d be ans2ered in t,e a11irmative. =or one, "e*. 36 o1 R'
9165 and its im&#ementing ru#es and regu#ations 8;RR9, as *ou*,ed, *ontain
&rovisions s&e*i1i*a##6 dire*ted to2ards &reventing a situation t,at 2ou#d undu#6
embarrass t,e em&#o6ees or &#a*e t,em under a ,umi#iating eG&erien*e. >,i#e
ever6 o11i*er and em&#o6ee in a &rivate estab#is,ment is under t,e #a2 deemed
1ore2arned t,at ,e or s,e ma6 be a &ossib#e sub)e*t o1 a drug test, nobod6 is rea##6
sing#ed out in advan*e 1or drug testing. +,e goa# is to dis*ourage drug use b6 not
te##ing in advan*e an6one 2,en and 2,o is to be tested. 'nd as ma6 be observed,
"e*. 368d9 o1 R' 9165 itse#1 &res*ribes 2,at, in Ople, is a narro2ing ingredient b6
&roviding t,at t,e em&#o6ees *on*erned s,a## be sub)e*ted to Krandom drug test as
*ontained in t,e *om&an6As 2or3 ru#es and regu#ations G G G 1or &ur&oses o1
redu*ing t,e ris3 in t,e 2or3 &#a*e.L
=or anot,er, t,e random drug testing s,a## be underta3en under *onditions
*a#*u#ated to &rote*t as mu*, as &ossib#e t,e em&#o6eeAs &riva*6 and dignit6. 's to
t,e me*,ani*s o1 t,e test, t,e #a2 s&e*i1ies t,at t,e &ro*edure s,a## em&#o6 t2o
testing met,ods, i.e., t,e s*reening test and t,e *on1irmator6 test, doubt#ess to
ensure as mu*, as &ossib#e t,e trust2ort,iness o1 t,e resu#ts. Iut t,e more
im&ortant *onsideration #ies in t,e 1a*t t,at t,e test s,a## be *ondu*ted b6 trained
&ro1essiona#s in a**ess!*ontro##ed #aboratories monitored b6 t,e De&artment o1
:ea#t, 8D@:9 to sa1eguard against resu#ts tam&ering and to ensure an a**urate
*,ain o1 *ustod6.
4335
;n addition, t,e ;RR issued b6 t,e D@: &rovides t,at a**ess to
t,e drug resu#ts s,a## be on t,e Kneed to 3no2L basisH
4305
t,at t,e Kdrug test resu#t
and t,e re*ords s,a## be 43e&t5 *on1identia# sub)e*t to t,e usua# a**e&ted &ra*ti*es
to &rote*t t,e *on1identia#it6 o1 t,e test resu#ts.L
4355
Notab#6, R' 9165 does not
ob#ige t,e em&#o6er *on*erned to re&ort to t,e &rose*uting agen*ies an6
in1ormation or eviden*e re#ating to t,e vio#ation o1 t,e Comprehensive :angerous
:rugs ;!t re*eived as a resu#t o1 t,e o&eration o1 t,e drug testing. '## to#d,
t,ere1ore, t,e intrusion into t,e em&#o6eesA &riva*6, under R' 9165, is
a**om&anied b6 &ro&er sa1eguards, &arti*u#ar#6 against embarrassing #ea3ages o1
test resu#ts, and is re#ative#6 minima#.
+o reiterate, R' 9165 2as ena*ted as a measure to stam& out i##ega# drug in
t,e *ountr6 and t,us &rote*t t,e 2e##!being o1 t,e *iti$ens, es&e*ia##6 t,e 6out,,
1rom t,e de#eterious e11e*ts o1 dangerous drugs. +,e #a2 intends to a*,ieve t,is
t,roug, t,e medium, among ot,ers, o1 &romoting and reso#ute#6 &ursuing a
nationa# drug abuse &o#i*6 in t,e 2or3&#a*e via a mandator6 random drug test.
4365
+o t,e %ourt, t,e need 1or drug testing to at #east minimi$e i##ega# drug use is
substantia# enoug, to override t,e individua#As &riva*6 interest under t,e
&remises. +,e %ourt *an *onsider t,at t,e i##ega# drug mena*e *uts a*ross gender,
age grou&, and so*ia#! e*onomi* #ines. 'nd it ma6 not be amiss to state t,at t,e
sa#e, manu1a*ture, or tra11i*3ing o1 i##ega# drugs, 2it, t,eir read6 mar3et, 2ou#d be
an investorAs dream 2ere it not 1or t,e i##ega# and immora# *om&onents o1 an6 o1
su*, a*tivities. +,e drug &rob#em ,as ,ard#6 abated sin*e t,e martia# #a2 &ub#i*
eGe*ution o1 a notorious drug tra11i*3er. +,e state *an no #onger assume a #aid ba*3
stan*e 2it, res&e*t to t,is modern!da6 s*ourge. Drug en1or*ement agen*ies
&er*eive a mandator6 random drug test to be an e11e*tive 2a6 o1 &reventing and
deterring drug use among em&#o6ees in &rivate o11i*es, t,e t,reat o1 dete*tion b6
random testing being ,ig,er t,an ot,er modes. +,e %ourt ,o#ds t,at t,e *,osen
met,od is a reasonab#e and enoug, means to #i*3 t,e &rob#em.
+a3ing into a**ount t,e 1oregoing 1a*tors, i.e., t,e redu*ed eG&e*tation o1
&riva*6 on t,e &art o1 t,e em&#o6ees, t,e *om&e##ing state *on*ern #i3e#6 to be met
b6 t,e sear*,, and t,e 2e##!de1ined #imits set 1ort, in t,e #a2 to &ro&er#6 guide
aut,orities in t,e *ondu*t o1 t,e random testing, 2e ,o#d t,at t,e *,a##enged drug
test reFuirement is, under t,e #imited *onteGt o1 t,e *ase, reasonab#e and,ergo,
*onstitutiona#.
7i3e t,eir *ounter&arts in t,e &rivate se*tor, government o11i*ia#s and
em&#o6ees a#so #abor under reasonab#e su&ervision and restri*tions im&osed b6 t,e
%ivi# "ervi*e #a2 and ot,er #a2s on &ub#i* o11i*ers, a## ena*ted to &romote a ,ig,
standard o1 et,i*s in t,e &ub#i* servi*e.
43-5
'nd i1 R' 9165 &asses t,e norm o1
reasonab#eness 1or &rivate em&#o6ees, t,e more reason t,at it s,ou#d &ass t,e test
1or *ivi# servants, 2,o, b6 *onstitutiona# *ommand, are reFuired to be a**ountab#e
at a## times to t,e &eo&#e and to serve t,em 2it, utmost res&onsibi#it6 and
e11i*ien*6.
4385
Petitioner "J"A neGt &osture t,at "e*. 36 o1 R' 9165 is ob)e*tionab#e on t,e
ground o1 undue de#egation o1 &o2er ,ard#6 *ommends itse#1 1or
*on*urren*e. %ontrar6 to its &osition, t,e &rovision in Fuestion is not so
eGtensive#6 dra2n as to give unbrid#ed o&tions to s*,oo#s and em&#o6ers to
determine t,e manner o1 drug testing. "e*. 36 eG&ress#6 &rovides ,o2 drug testing
1or students o1 se*ondar6 and tertiar6 s*,oo#s and o11i*ersEem&#o6ees o1
&ub#i*E&rivate o11i*es s,ou#d be *ondu*ted. ;t enumerates t,e &ersons 2,o s,a##
undergo drug testing. ;n t,e *ase o1 students, t,e testing s,a## be in a**ordan*e 2it,
t,e s*,oo# ru#es as *ontained in t,e student ,andboo3 and 2it, noti*e to &arents.
@n t,e &art o1 o11i*ersEem&#o6ees, t,e testing s,a## ta3e into a**ount t,e *om&an6As
2or3 ru#es. ;n eit,er *ase, t,e random &ro*edure s,a## be observed, meaning t,at
t,e &ersons to be sub)e*ted to drug test s,a## be &i*3ed b6 *,an*e or in an
un&#anned 2a6. 'nd in a## *ases, sa1eguards against misusing and *om&romising
t,e *on1identia#it6 o1 t,e test resu#ts are estab#is,ed.
7est it be over#oo3ed, "e*. 90 o1 R' 9165 *,arges t,e DDI to issue, in
*onsu#tation 2it, t,e D@:, De&artment o1 t,e ;nterior and 7o*a# Government,
De&artment o1 ?du*ation, and De&artment o1 7abor and ?m&#o6ment, among ot,er
agen*ies, t,e ;RR ne*essar6 to en1or*e t,e #a2. ;n net e11e*t t,en, t,e &arti*i&ation
o1 s*,oo#s and o11i*es in t,e drug testing s*,eme s,a## a#2a6s be sub)e*t to t,e ;RR
o1 R' 9165. ;t is, t,ere1ore, in*orre*t to sa6 t,at s*,oo#s and em&#o6ers ,ave
un*,e*3ed dis*retion to determine ,o2 o1ten, under 2,at *onditions, and 2,ere
t,e drug tests s,a## be *ondu*ted.
+,e va#idit6 o1 de#egating #egis#ative &o2er is no2 a Fuiet area in t,e
*onstitutiona# #ands*a&e.
4395
;n t,e 1a*e o1 t,e in*reasing *om&#eGit6 o1 t,e tas3 o1
t,e government and t,e in*reasing inabi#it6 o1 t,e #egis#ature to *o&e dire*t#6 2it,
t,e man6 &rob#ems demanding its attention, resort to de#egation o1 &o2er, or
entrusting to administrative agen*ies t,e &o2er o1 subordinate #egis#ation, ,as
be*ome im&erative, as ,ere.
La&erna Pe#"#"n (Cn&#"#+#"na,"#' $ Sec. 1>AcB, AdB,
A$B, and A!B $ RA C:>;)
Bn#i3e t,e situation *overed b6 "e*. 368*9 and 8d9 o1 R' 9165, t,e %ourt
1inds no va#id )usti1i*ation 1or mandator6 drug testing 1or &ersons a**used o1
*rimes. ;n t,e *ase o1 students, t,e *onstitutiona# viabi#it6 o1 t,e mandator6,
random, and sus&i*ion#ess drug testing 1or students emanates &rimari#6 1rom t,e
2aiver b6 t,e students o1 t,eir rig,t to &riva*6 2,en t,e6 see3 entr6 to t,e s*,oo#,
and 1rom t,eir vo#untari#6 submitting t,eir &ersons to t,e &arenta# aut,orit6 o1
s*,oo# aut,orities. ;n t,e *ase o1 &rivate and &ub#i* em&#o6ees, t,e *onstitutiona#
soundness o1 t,e mandator6, random, and sus&i*ion#ess drug testing &ro*eeds 1rom
t,e reasonab#eness o1 t,e drug test &o#i*6 and reFuirement.
>e 1ind t,e situation entire#6 di11erent in t,e *ase o1 &ersons *,arged be1ore
t,e &ub#i* &rose*utorAs o11i*e 2it, *rimina# o11enses &unis,ab#e 2it, siG 869 6ears
and one 819 da6 im&risonment. +,e o&erative *on*e&ts in t,e mandator6 drug
testing are KrandomnessL and Ksus&i*ion#ess.L ;n t,e *ase o1 &ersons *,arged 2it,
a *rime be1ore t,e &rose*utorAs o11i*e, a mandator6 drug testing *an never be
random or sus&i*ion#ess. +,e ideas o1 randomness and being sus&i*ion#ess are
antit,eti*a# to t,eir being made de1endants in a *rimina# *om&#aint. +,e6 are not
random#6 &i*3edH neit,er are t,e6 be6ond sus&i*ion. >,en &ersons sus&e*ted o1
*ommitting a *rime are *,arged, t,e6 are sing#ed out and are im&#eaded against
t,eir 2i##. +,e &ersons t,us *,arged, b6 t,e bare 1a*t o1 being ,a#ed be1ore t,e
&rose*utorAs o11i*e and &ea*eab#6 submitting t,emse#ves to drug testing, i1 t,at be
t,e *ase, do not ne*essari#6 *onsent to t,e &ro*edure, #et a#one 2aive t,eir rig,t to
&riva*6.
40/5
+o im&ose mandator6 drug testing on t,e a**used is a b#atant attem&t to
,arness a medi*a# test as a too# 1or *rimina# &rose*ution, *ontrar6 to t,e stated
ob)e*tives o1 R' 9165. Drug testing in t,is *ase 2ou#d vio#ate a &ersonsA rig,t to
&riva*6 guaranteed under "e*. ., 'rt. ;;; o1 t,e %onstitution. >orse sti##, t,e
a**used &ersons are veritab#6 1or*ed to in*riminate t,emse#ves.
3HERE4ORE, t,e %ourt reso#ves to GRANT t,e &etition in G.R. No.
161658 and de*#ares Sec. 1>(!) o1 RA C:>; andCOMELEC Re&,+#"n N.
>?=> as 7NCONSTIT7TIONALH and to PARTIALLY GRANT t,e &etition in
G.R. Nos. 15-8-/ and 158633 b6 de*#aring Sec. 1>(c) and (d) o1 RA
C:>; CONSTIT7TIONAL, but de*#aring its Sec.
1>($)7NCONSTIT7TIONAL. '## *on*erned agen*ies are, a**ording#6,
&ermanent#6 en)oined 1rom im&#ementing Sec. 1>($) and (!) o1RA C:>;. No *osts.
SO OR5ERE5.
PRESBITERO J. VELASCO, JR.
'sso*iate Justi*e
>? %@N%BR9
REYNATO S. P7NO
%,ie1 Justi*e
LEONAR5O A. 87IS7MBING CONS7ELO YNARES-SANTIAGO
'sso*iate Justi*e 'sso*iate Justi*e
ANTONIO T. CARPIO MA. ALICIA A7STRIA-MARTINED
'sso*iate Justi*e 'sso*iate Justi*e
RENATO C. CORONA CONCHITA
CARPIO MORALES
'sso*iate Justi*e 'sso*iate Justi*e
A5OL4O S. ADC7NA 5ANTE O. TINGA
'sso*iate Justi*e 'sso*iate
Justi*e
MINITA V. CHICO-NADARIO ANTONIO E57AR5O B. NACH7RA
'sso*iate Justi*e 'sso*iate Justi*e
R7BEN T. REYES TERESITA J. LEONAR5O-5E CASTRO
'sso*iate Justi*e 'sso*iate Justi*e
ART7RO 5. BRION
'sso*iate Justi*e
C E R T I 4 I C A T I O N
Pursuant to "e*tion 13, 'rti*#e <;;; o1 t,e %onstitution, ; *erti16 t,at t,e
*on*#usions in t,e above De*ision ,ad been rea*,ed in *onsu#tation be1ore t,e *ase
2as assigned to t,e 2riter o1 t,e o&inion o1 t,e %ourt.
REYNATO S. P7NO
%,ie1 Justi*e
415
Re!e#e*ted as senator in t,e .//0 e#e*tions.
4.5
Rollo 8G.R. No. 1586339, &&. 180!185.
435
:umlao v. CO*?L?C, No. 7!5..05, Januar6 .., 198/, 95 "%R' 39., 0/1.
405
Iernas, +:? 198- %@N"+;+B+;@N @= +:? R?PBI7;% @= +:? P:;7;PP;N?": '
%@((?N+'R 939 8.//39.
455
+on(ales v. %arvasa, G.R. No. 10/835, 'ugust 10, .///, 33- "%R' -33, -0/.
465
-atad v. Se!retary o the :epartment o ?nergy, G.R. Nos. 1.036/ D 1.-86-, November 5, 199-, .81
"%R' 33/, 309H :e +uia v. CO*?L?C, G.R. No. 1/0-1., (a6 6, 199., ./8 "%R' 0./, 0...
4-5
9almer v. 2oard o ?du!ation, .-6 N ... 11 N? .d 88-.
485
%ru$, %@N"+;+B+;@N'7 7'> 0 8.///9.
495
*utu! v. Commission on ?le!tions, No. 7!3.-1-, November .6, 19-/, 36 "%R' ..8, .30.
41/5
5/ P,i#. .59, 3/9 819.-9.
4115
J. Iernas, ".J., +:? 198- %@N"+;+B+;@N @= +:? R?PBI7;% @= +:? P:;7;PP;N?": '
%@((?N+'R 6/0 819969.
41.5
;d.
4135
See *on*urring o&inion in +o v. Commision on ?le!tions, G.R. No. 10--01, (a6 1/, .//1, 35- "%R'
-39, -53.
4105
R' 9165, "e*. ..
4155
,ernonia S!hool :istri!t ABJ v. ;!ton, 515 B.". 606 819959, 661.
4165
Ople v. -orres, G.R. No. 1.-685, Ju#6 .3, 1998, .93 "%R' 101, 169H *iting *ore v. *utu!, No. 7!
./38-, Januar6 31, 1968, .. "%R' 0.0, 000!005.
41-5
"e*. .. +,e rig,t o1 t,e &eo&#e to be se*ure in t,eir &ersons, ,ouses, &a&ers, and e11e*ts against
unreasonab#e sear*,es and sei$ures o1 2,atever nature and 1or an6 &ur&ose s,a## be invio#ab#e, and no sear*,
2arrant or 2arrant o1 arrest s,a## issue eG*e&t u&on &robab#e *ause to be determined &ersona##6 b6 t,e )udge a1ter
eGamination under oat, or a11irmation o1 t,e *om&#ainant and t,e 2itnesses ,e ma6 &rodu*e, and &arti*u#ar#6
des*ribing t,e &#a*e to be sear*,ed and t,e &erson or t,ings to be sei$ed.
4185
536 B.". 8.. 8.//.9H *ited in . Iernas, %@N"+;+B+;@N'7 R;G:+" 'ND "@%;'7
D?('ND" ..0!..- 8.//09.
4195
+,e rig,t o1 t,e &eo&#e to be se*ure in t,eir &ersons, ,ouses, &a&ers, and e11e*ts, against unreasonab#e
sear*,es and sei$ures, s,a## not be vio#ated, and no >arrants s,a## issue, but u&on &robab#e *ause, su&&orted b6 @at,
or a11irmation, and &arti*u#ar#6 des*ribing t,e &#a*e to be sear*,ed, and t,e &ersons or t,ings to be sei$ed.
4./5
+,e =ourt, 'mendment is a#most simi#ar to "e*. ., 'rt. ;;; o1 t,e %onstitution, eG*e&t t,at t,e #atter
#imited t,e determination o1 &robab#e *ause to a )udge a1ter an eGamination under oat, o1 t,e *om&#ainant and ,is
2itnesses. :en*e, &ronoun*ements o1 t,e B" =edera# "u&reme %ourt and "tate '&&e##ate %ourt ma6 be *onsidered
do*trina# in t,is )urisdi*tion, un#ess t,e6 are mani1est#6 *ontrar6 to our %onstitution. See :errera, :'NDI@@N
@N 'RR?"+, "?'R%: 'ND "?;RBR? 8 8.//39.
4.15
-olentino v. ;l!on!el, No. 7!630//, (ar*, 18, 1983, 1.1 "%R' 9., 95!96.
4..5
Rollo 8G.R. No. 1586339, &. ./0, res&ondentsA %onso#idated (emorandum.
4.35
Rollo 8G.R. No. 15-8-/9, &. 1/.
4.05
Sec#"n :. No &erson s,a## be de&rived o1 #i1e, #ibert6, or &ro&ert6 2it,out due &ro*ess o1 #a2, nor s,a##
an6 &erson be denied t,e eFua# &rote*tion o1 t,e #a2s.
Sec. 6. +,e rig,t o1 t,e &eo&#e to be se*ure in t,eir &ersons, ,ouses, &a&ers, and e11e*ts against
unreasonab#e sear*,es and sei$ures o1 2,atever nature and 1or an6 &ur&ose s,a## be invio#ab#e, and no sear*,
2arrant or 2arrant o1 arrest s,a## issue eG*e&t u&on &robab#e *ause to be determined &ersona##6 b6 t,e )udge a1ter
eGamination under oat, or a11irmation o1 t,e *om&#ainant and t,e 2itnesses ,e ma6 &rodu*e, and &arti*u#ar#6
des*ribing t,e &#a*e to be sear*,ed and t,e &erson or t,ings to be sei$ed.
4.55
Rollo 8G.R. No. 1586339, &. 9.
4.65
Ople, su&ra note 16, at 153H *iting %oo#e6 on +orts, "e*. 135, <o#. 1, 0t, ed., 4193.5.
4.-5
6. 'm. Jur. .d, 9riva!y, "e*. 1.
4.85
38- B.". 5.3H *ited in . Iernas, su&ra note 18, at .3..
4.95
6. 'm. Jur. .d, 9riva!y, "e*. 1-.
43/5
,ernonia D 2oard o ?du!ation, su&ra notes 15 D 18.
4315
Skinner v. Railway Labor ?7e!utives ;ssn., 089 B.". 6/., 619 819899H *ited in ,ernonia, su&ra.
43.5
"u&ra note 16, at 166 D 169.
4335
Bnder "e*. - 435 o1 t,e D@: ;RR Governing 7i*ensing and '**reditation o1 Drug 7aboratories, a
#aborator6 is reFuired to use do*umented *,ain o1 *ustod6 &ro*edures to maintain *ontro# and *ustod6 o1 s&e*imens.
4305
D@: ;RR Governing 7i*ensing and '**reditation o1 Drug 7aboratories, "e*. - 41/.35 &rovides t,at t,e
origina# *o&6 o1 t,e test resu#ts 1orm s,a## be given to t,e *#ientEdonor, *o&6 1urnis,ed t,e D@: and t,e reFuesting
agen*6.
4355
;d., "e*. - 41/.05.
4365
"e*s. 0- and 08 o1 R' 9165 *,arge t,e De&artment o1 7abor and ?m&#o6ment 2it, t,e dut6 to deve#o&
and &romote a nationa# drug &revention &rogram and t,e ne*essar6 guide#ines in t,e 2or3 &#a*e, 2,i*, s,a## in*#ude
a mandator6 dra1ting and ado&tion o1 &o#i*ies to a*,ieve a drug!1ree 2or3&#a*e.
43-5
%@D? @= %@NDB%+ 'ND ?+:;%'7 "+'ND'RD" =@R PBI7;% @==;%?R" 'ND
?(P7@??", "e*. ..
4385
%@N"+;+B+;@N, 'rt. C;, "e*. 1.
4395
-atad, su&ra note 6, at 351.
40/5
Leona 9asion ,iuda de +ar!ia v. Lo!sin, 65 P,i#. 689, 695 819389H *iting %oo#e6, %@N"+. 7;(. 63/
88t, ed.9.
+oday is +uesday, July 1/, !514
Disini v. The Secretary of Justice, G.+. 9o. =V@@@>- Februar' =VT
W 4ecision- Abad X.Y
W ,oncurring and 4issenting Opinion- Sereno X.Y
W ,oncurring and 4issenting Opinion- ,arpio X.Y
W 4issenting and ,oncurring Opinion- Leonen X.Y
W Separate ,oncurring Opinion- /rion X.Y
<epublic o' the "hilippines
SU6REME COURT
&anila
7# 8;#C
G.R. No. 203339 "e4/u/, 11, 2015
JOSE JESUS M. 3$S$N$, JR., ROWENA S. 3$S$N$, L$ANNE $%# 6. ME3$NA, JANETTE TORAL n! ERNESTO SON$3O,
JR., "etitioners,
vs.
THE SECRETAR# O" JUST$CE, THE SECRETAR# O" THE 3E6ARTMENT O" THE $NTER$OR AN3 LOCAL GO%ERNMENT,
THE E7ECUT$%E 3$RECTOR O" THE $N"ORMAT$ON AN3 COMMUN$CAT$ONS TECHNOLOG# O""$CE, THE CH$E" O" THE
6H$L$66$NE NAT$ONAL 6OL$CE n! THE 3$RECTOR O" THE NAT$ONAL BUREAU O" $N%EST$GAT$ON, <espondents.
9 - - - - - - - - - - - - - - - - - - - - - - - 9
G.R. No. 203299
LOU$S EBARO;E C. B$RAOGO, "etitioner,
vs.
NAT$ONAL BUREAU O" $N%EST$GAT$ON n! 6H$L$66$NE NAT$ONAL 6OL$CE, <espondents.
9 - - - - - - - - - - - - - - - - - - - - - - - 9
G.R. No. 203306
ALAB NG MAMAMAHA#AG @ALAMA, HU;UMAN NG MAMAMA#AN MO%EMENT, $NC., JERR# S. #A6, BERTEN$ ETOTOE
CAUS$NG, HERNAN$ <. CUARE, 6ERC# LA6$3, TRAC# CABRERA, RONAL3O E. RENTA, C$R$LO 6. SABARRE, JR., 3ER%$N
CASTRO, ET AL., "etitioners,
vs.
O""$CE O" THE 6RES$3ENT, /e*/e(en+e! 4, 6/e(&!en+ Ben&-no S&.eon AKu&no $$$, SENATE O" THE 6H$L$66$NES, n!
HOUSE O" RE6RESENTAT$%ES, <espondents.
9 - - - - - - - - - - - - - - - - - - - - - - - 9
G.R. No. 203399
SENATOR TEO"$STO 3L GU$NGONA $$$, "etitioner,
vs.
E7ECUT$%E SECRETAR#, THE SECRETAR# O" JUST$CE, THE SECRETAR# O" THE 3E6ARTMENT O" $NTER$OR AN3
LOCAL GO%ERNMENT, THE CH$E" O" THE 6H$L$66$NE NAT$ONAL 6OL$CE, n! 3$RECTOR O" THE NAT$ONAL BUREAU
O" $N%EST$GAT$ON, <espondents.
9 - - - - - - - - - - - - - - - - - - - - - - - 9
G.R. No. 203372
ALE7AN3ER A3ON$S, ELLEN TOR3ES$LLAS, MA. G$SELA OR3ENES-CASCOLAN, H. HARR# L. RO<UE, JR., ROMEL R.
BAGARES, n! G$LBERT T. AN3RES, "etitioners,
vs.
THE E7ECUT$%E SECRETAR#, THE 3E6ARTMENT O" BU3GET AN3 MANAGEMENT, THE 3E6ARTMENT O" JUST$CE, THE
3E6ARTMENT O" THE $NTER$OR AN3 LOCAL GO%ERNMENT, THE NAT$ONAL BUREAU O" $N%EST$GAT$ON, THE
6H$L$66$NE NAT$ONAL 6OL$CE, AN3 THE $N"ORMAT$ON AN3 COMMUN$CAT$ONS TECHNOLOG# O""$CE-3E6ARTMENT
O" SC$ENCE AN3 TECHNOLOG#, <espondents.
9 - - - - - - - - - - - - - - - - - - - - - - - 9
G.R. No. 203391
HON. RA#MON3 %. 6ALAT$NO, HON. ANTON$O T$N$O, %ENCER MAR$ CR$SOSTOMO O" ANA;BA#AN, MA. ;ATHER$NE
ELONA O" THE 6H$L$66$NE COLLEG$AN, $SABELLE THERESE BAGU$S$ O" THE NAT$ONAL UN$ON O" STU3ENTS O" THE
6H$L$66$NES, ET AL., "etitioners,
vs.
6A<U$TO N. OCHOA, JR., &n '&( )*)&+, ( ELe)u+&:e Se)/e+/, n! 8+e/-e-o o0 6/e(&!en+ Ben&-no S&.eon AKu&no $$$,
LE$LA 3E L$MA &n 'e/ )*)&+, ( Se)/e+/, o0 Ju(+&)e, <espondents.
9 - - - - - - - - - - - - - - - - - - - - - - - 9
G.R. No. 203507
BAGONG AL#ANSANG MA;ABA#AN SECRETAR# GENERAL RENATO M. RE#ES, JR., N+&on8 A/+&(+ B$EN%EN$3O L.
LUMBERA, C'&/*e/(on o0 Con)e/ne! A/+&(+( o0 +'e 6'&8&**&ne(, ELMER C. LABOG, C'&/*e/(on o0 ;&8u(n- M,o Uno,
CR$ST$NA E. 6ALABA#, Se)/e+/, Gene/8 o0 ;/*+n, "ER3$NAN3 R. GA$TE, C'&/*e/(on o0 COURAGE, JOEL B.
MAGLUNSO3, %&)e 6/e(&!en+ o0 AnD*B&( 6/+,-L&(+, LANA R. L$NABAN, Se)/e+/, Gene/8 G4/&e8 Wo.en?( 6/+,,
A3OL"O ARES 6. GUT$ERRE1, n! JUL$US GARC$A MAT$BAG, "etitioners,
vs.
BEN$GNO S$MEON C. A<U$NO $$$, 6/e(&!en+ o0 +'e Re*u48&) o0 +'e 6'&8&**&ne(, 6A<U$TO N. OCHOA, JR., ELe)u+&:e
Se)/e+/,, SENATE O" THE 6H$L$66$NES, /e*/e(en+e! 4, SENATE 6RES$3ENT JUAN 6ONCE ENR$LE, HOUSE O"
RE6RESENTAT$%ES, /e*/e(en+e! 4, S6EA;ER "EL$C$ANO BELMONTE, JR., LE$LA 3E L$MA, Se)/e+/, o0 +'e 3e*/+.en+
o0 Ju(+&)e, LOU$S NA6OLEON C. CASAMBRE, ELe)u+&:e 3&/e)+o/ o0 +'e $n0o/.+&on n! Co..un&)+&on( Te)'no8o-,
O00&)e, NONNATUS CAESAR R. ROJAS, 3&/e)+o/ o0 +'e N+&on8 Bu/eu o0 $n:e(+&-+&on, 3JGEN. N$CANOR A. BARTOLOME,
C'&e0 o0 +'e 6'&8&**&ne N+&on8 6o8&)e, MANUEL A. RO7AS $$, Se)/e+/, o0 +'e 3e*/+.en+ o0 +'e $n+e/&o/ n! Lo)8
Go:e/n.en+,<espondents.
9 - - - - - - - - - - - - - - - - - - - - - - - 9
G.R. No. 203550
MELENC$O S. STA. MAR$A, SE3"RE# M. CAN3ELAR$A, AM6AR$TA STA. MAR$A, RA# 6AOLO J. SANT$AGO, G$LBERT %.
SEMBRANO, n! R#AN JEREM$AH 3. <UAN @88 o0 +'e A+eneo Hu.n R&-'+( Cen+e/A,"etitioners,
vs.
HONORABLE 6A<U$TO OCHOA &n '&( )*)&+, ( ELe)u+&:e Se)/e+/,, HONORABLE LE$LA 3E L$MA &n 'e/ )*)&+, (
Se)/e+/, o0 Ju(+&)e, HONORABLE MANUEL RO7AS &n '&( )*)&+, ( Se)/e+/, o0 +'e 3e*/+.en+ o0 $n+e/&o/ n! Lo)8
Go:e/n.en+, T'e CH$E" o0 +'e 6'&8&**&ne N+&on8 6o8&)e, T'e 3$RECTOR o0 +'e N+&on8 Bu/eu o0 $n:e(+&-+&on @88 o0 +'e
ELe)u+&:e 3e*/+.en+ o0 Go:e/n.en+A,<espondents.
9 - - - - - - - - - - - - - - - - - - - - - - - 9
G.R. No. 203593
NAT$ONAL UN$ON O" JOURNAL$STS O" THE 6H$L$66$NES @NUJ6A, 6H$L$66$NE 6RESS $NST$TUTE @66$A, CENTER "OR
ME3$A "REE3OM AN3 RES6ONS$B$L$T#, ROWENA CARRAN1A 6ARAAN, MEL$N3A <U$NTOS-3E JESUS, JOSE6H ALW#N
ALBURO, AR$EL SEBELL$NO AN3 THE 6ET$T$ONERS $N THE e-6ET$T$ON '++*>JJBBB.nuM*.o/-Jno-+o-/10179J, "etitioners,
vs.
THE E7ECUT$%E SECRETAR#, THE SECRETAR# O" JUST$CE, THE SECRETAR# O" THE $NTER$OR AN3 LOCAL
GO%ERNMENT, THE SECRETAR# O" BU3GET AN3 MANAGEMENT, THE 3$RECTOR GENERAL O" THE 6H$L$66$NE
NAT$ONAL 6OL$CE, THE 3$RECTOR O" THE NAT$ONAL BUREAU O" $N%EST$GAT$ON, THE C#BERCR$ME $N%EST$GAT$ON
AN3 COOR3$NAT$NG CENTER, AN3 ALL AGENC$ES AN3 $NSTRUMENTAL$T$ES O" GO%ERNMENT AN3 ALL 6ERSONS
ACT$NG UN3ER THE$R $NSTRUCT$ONS, OR3ERS, 3$RECT$ON $N RELAT$ON TO THE $M6LEMENTAT$ON O" RE6UBL$C ACT
NO. 10179, <espondents.
9 - - - - - - - - - - - - - - - - - - - - - - - 9
G.R. No. 203595
6AUL CORNEL$US T. CAST$LLO N R#AN 3. AN3RES, "etitioners,
vs.
THE HON. SECRETAR# O" JUST$CE THE HON. SECRETAR# O" $NTER$OR AN3 LOCAL GO%ERNMENT,<espondents.
9 - - - - - - - - - - - - - - - - - - - - - - - 9
G.R. No. 203569
ANTHON# $AN M. CRU1I MARCELO R. LAN3$CHOI BENJAM$N NOEL A. ES6$NAI MARC; RONAL3 C. R$MOR$NI JUL$US 3.
ROCASI OL$%ER R$CHAR3 %. ROB$LLOI AARON ER$C; A. LO1A3AI GERAR3 A3R$AN 6. MAGNA#EI JOSE REG$NAL3 A.
RAMOSI MA. ROSAR$O T. JUANI BREN3AL#N 6. RAM$RE1I MAUREEN A. HERM$TAN$OI ;R$ST$NE JO# S. REMENT$LLAI
MAR$CEL O. GRA#I JUL$US $%AN ". CAB$GONI BENRAL6H S. #UI CEBU BLOGGERS SOC$ET#, $NC. 6RES$3ENT RUBEN B.
L$CERA, JRI n! 6$NO# E76ATJO"W BLOG AWAR3S, $NC. COOR3$NATOR 6E3RO E. RAHONI "etitioners,
vs.
H$S E7CELLENC# BEN$GNO S. A<U$NO $$$, &n '&( )*)&+, ( 6/e(&!en+ o0 +'e Re*u48&) o0 +'e 6'&8&**&ne(I SENATE O" THE
6H$L$66$NES, /e*/e(en+e! 4, HON. JUAN 6ONCE ENR$LE, &n '&( )*)&+, ( Sen+e 6/e(&!en+I HOUSE O"
RE6RESENTAT$%ES, /e*/e(en+e! 4, "EL$C$ANO R. BELMONTE, JR., &n '&( )*)&+, ( S*eDe/ o0 +'e Hou(e o0
Re*/e(en++&:e(I HON. 6A<U$TO N. OCHOA, JR., &n '&( )*)&+, ( ELe)u+&:e Se)/e+/,I HON. LE$LA M. 3E L$MA, &n 'e/
)*)&+, ( Se)/e+/, o0 Ju(+&)eI HON. LOU$S NA6OLEON C. CASAMBRE, &n '&( )*)&+, ( ELe)u+&:e 3&/e)+o/,
$n0o/.+&on n! Co..un&)+&on( Te)'no8o-, O00&)eI HON. NONNATUS CAESAR R. ROJAS, &n '&( )*)&+, ( 3&/e)+o/,
N+&on8 Bu/eu o0 $n:e(+&-+&onI n! 6J3GEN. N$CANOR A. BARTOLOME, &n '&( )*)&+, ( C'&e0, 6'&8&**&ne N+&on8
6o8&)e, <espondents.
9 - - - - - - - - - - - - - - - - - - - - - - - 9
G.R. No. 203901
6H$L$66$NE BAR ASSOC$AT$ON, $NC., "etitioner,
vs.
H$S E7CELLENC# BEN$GNO S. A<U$NO $$$, &n '&( o00&)&8 )*)&+, ( 6/e(&!en+ o0 +'e Re*u48&) o0 +'e 6'&8&**&ne(I HON.
6A<U$TO N. OCHOA, JR., &n '&( o00&)&8 )*)&+, ( ELe)u+&:e Se)/e+/,I HON. LE$LA M. 3E L$MA, &n 'e/ o00&)&8 )*)&+, (
Se)/e+/, o0 Ju(+&)eI LOU$S NA6OLEON C. CASAMBRE, &n '&( o00&)&8 )*)&+, ( ELe)u+&:e 3&/e)+o/, $n0o/.+&on n!
Co..un&)+&on( Te)'no8o-, O00&)eI NONNATUS CAESAR R. ROJAS, &n '&( o00&)&8 )*)&+, ( 3&/e)+o/ o0 +'e N+&on8
Bu/eu o0 $n:e(+&-+&onI n! 3$RECTOR GENERAL N$CANOR A. BARTOLOME, &n '&( o00&)&8 )*)&+, ( C'&e0 o0 +'e
6'&8&**&ne N+&on8 6o8&)e, <espondents.
9 - - - - - - - - - - - - - - - - - - - - - - - 9
G.R. No. 203909
BA#AN MUNA RE6RESENTAT$%E NER$ J. COLMENARES, "etitioner,
vs.
THE E7ECUT$%E SECRETAR# 6A<U$TO OCHOA, JR., <espondent.
9 - - - - - - - - - - - - - - - - - - - - - - - 9
G.R. No. 203919
NAT$ONAL 6RESS CLUB O" THE 6H$L$66$NES, $NC. /e*/e(en+e! 4, BENN# 3. ANT$6OR3A &n '&( )*)&+, ( 6/e(&!en+
n! &n '&( *e/(on8 )*)&+,, "etitioner,
vs.
O""$CE O" THE 6RES$3ENT, 6RES. BEN$GNO S$MEON A<U$NO $$$, 3E6ARTMENT O" JUST$CE, 3E6ARTMENT O"
$NTER$OR AN3 LOCAL GO%ERNMENT, 6H$L$66$NE NAT$ONAL 6OL$CE, NAT$ONAL BUREAU O" $N%EST$GAT$ON,
3E6ARTMENT O" BU3GET AN3 MANAGEMENT AN3 ALL OTHER GO%ERNMENT $NSTRUMENTAL$T$ES WHO HA%E
HAN3S $N THE 6ASSAGE AN3JOR $M6LEMENTAT$ON O" RE6UBL$C ACT 10179, <espondents.
9 - - - - - - - - - - - - - - - - - - - - - - - 9
G.R. No. 203912
6H$L$66$NE $NTERNET "REE3OM ALL$ANCE, )o.*o(e! o0 3A;$LA-6H$L$66$NE COLLECT$%E "OR MO3ERN HERO$SM,
/e*/e(en+e! 4, Len& %e8()o, 6ART$3O LA;AS NG MASA, /e*/e(en+e! 4, Ce(/ S. Me8en)&o, "RANC$S EUSTON R. ACERO,
MARLON ANTHON# ROMASANTA TONSON, TEO3ORO A. CAS$=O, NOEM$ LAR3$1ABAL-3A3O, $MEL3A ORALES, JAMES
MATTHEW B. M$RA"LOR, JUAN G.M. RAGRAG$O, MAR$A "AT$MA A. %$LLENA, ME3AR3O M. MANR$<UE, JR., LAUREN
3A3O, MARCO %$TTOR$A TOB$AS SUMA#AO, $RENE CH$A, ERASTUS NOEL T. 3EL$1O, CR$ST$NA SARAH E. OSOR$O,
ROMEO "ACTOLER$N, NAOM$ L. TU6AS, ;ENNETH ;ENG, ANA ALE7AN3RA C. CASTRO, "etitioners,
vs.
THE E7ECUT$%E SECRETAR#, THE SECRETAR# O" JUST$CE, THE SECRETAR# O" $NTER$OR AN3 LOCAL GO%ERNMENT,
THE SECRETAR# O" SC$ENCE AN3 TECHNOLOG#, THE E7ECUT$%E 3$RECTOR O" THE $N"ORMAT$ON TECHNOLOG#
O""$CE, THE 3$RECTOR O" THE NAT$ONAL BUREAU O" $N%EST$GAT$ON, THE CH$E", 6H$L$66$NE NAT$ONAL 6OL$CE,
THE HEA3 O" THE 3OJ O""$CE O" C#BERCR$ME, n! THE OTHER MEMBERS O" THE C#BERCR$ME $N%EST$GAT$ON
AN3 COOR3$NAT$NG CENTER, <espondents.
C 7 C : S : 6 #
ABA3, J.:
+hese consolidated petitions seek to declare several provisions o' <epublic ;ct 2<.;.3 1510/, the Cybercri$e "revention ;ct o'
!51!, unconstitutional and void.
+he Facts and the Case
+he cybercri$e la( ai$s to re)ulate access to and use o' the cyberspace. Asin) his laptop or co$puter, a person can connect to the
internet, a syste$ that links hi$ to other co$puters and enable hi$, a$on) other thin)s, to*
1. ;ccess virtual libraries and encyclopedias 'or all kinds o' in'or$ation that he needs 'or research, study,
a$use$ent, upli't$ent, or pure curiosity=
!. "ost billboard-like notices or $essa)es, includin) pictures and videos, 'or the )eneral public or 'or special
audiences like associates, class$ates, or 'riends and read postin)s 'ro$ the$=
. ;dvertise and pro$ote )oods or services and $ake purchases and pay$ents=
4. :nDuire and do business (ith institutional entities like )overn$ent a)encies, banks, stock e9chan)es, trade
houses, credit card co$panies, public utilities, hospitals, and schools= and
/. Co$$unicate in (ritin) or by voice (ith any person throu)h his e-$ail address or telephone.
+his is cyberspace, a syste$ that acco$$odates $illions and billions o' si$ultaneous and on)oin) individual accesses to and uses
o' the internet. +he cyberspace is a boon to the need o' the current )eneration 'or )reater in'or$ation and 'acility o' co$$unication.
8ut all is not (ell (ith the syste$ since it could not 'ilter out a nu$ber o' persons o' ill (ill (ho (ould (ant to use cyberspace
technolo)y 'or $ischie's and cri$es. 6ne o' the$ can, 'or instance, avail hi$sel' o' the syste$ to un>ustly ruin the reputation o'
another or bully the latter by postin) de'a$atory state$ents a)ainst hi$ that people can read.
;nd because linkin) (ith the internet opens up a user to co$$unications 'ro$ others, the ill-$otivated can use the cyberspace 'or
co$$ittin) the't by hackin) into or surreptitiously accessin) his bank account or credit card or de'raudin) hi$ throu)h 'alse
representations. +he (icked can use the cyberspace, too, 'or illicit tra''ickin) in se9 or 'or e9posin) to porno)raphy )uileless children
(ho have access to the internet. For this reason, the )overn$ent has a le)iti$ate ri)ht to re)ulate the use o' cyberspace and
contain and punish (ron)doin)s.
#otably, there are also those (ho (ould (ant, like vandals, to (reak or cause havoc to the co$puter syste$s and net(orks o'
indispensable or hi)hly use'ul institutions as (ell as to the laptop or co$puter pro)ra$s and $e$ories o' innocent individuals. +hey
acco$plish this by sendin) electronic viruses or virtual dyna$ites that destroy those co$puter syste$s, net(orks, pro)ra$s, and
$e$ories. +he )overn$ent certainly has the duty and the ri)ht to prevent these to$'ooleries 'ro$ happenin) and punish their
perpetrators, hence the Cybercri$e "revention ;ct.
8ut petitioners clai$ that the $eans adopted by the cybercri$e la( 'or re)ulatin) undesirable cyberspace activities violate certain o'
their constitutional ri)hts. +he )overn$ent o' course asserts that the la( $erely seeks to reasonably put order into cyberspace
activities, punish (ron)doin)s, and prevent hurt'ul attacks on the syste$.
"endin) hearin) and ad>udication o' the issues presented in these cases, on February /, !51 the Court e9tended the ori)inal 1!5-
day te$porary restrainin) order 2+<63 that it earlier issued on 6ctober 9, !51!, en>oinin) respondent )overn$ent a)encies 'ro$
i$ple$entin) the cybercri$e la( until 'urther orders.
+he :ssues "resented
"etitioners challen)e the constitutionality o' the 'ollo(in) provisions o' the cybercri$e la( that re)ard certain acts as cri$es and
i$pose penalties 'or their co$$ission as (ell as provisions that (ould enable the )overn$ent to track do(n and penalize violators.
+hese provisions are*
a. Section 42a3213 on :lle)al ;ccess=
b. Section 42a323 on Cata :nter'erence=
c. Section 42a3263 on Cyber-sDuattin)=
d. Section 42b323 on :dentity +he't=
e. Section 42c3213 on Cyberse9=
'. Section 42c32!3 on Child "orno)raphy=
). Section 42c323 on Ansolicited Co$$ercial Co$$unications=
h. Section 42c3243 on %ibel=
i. Section / on ;idin) or ;bettin) and ;tte$pt in the Co$$ission o' Cybercri$es=
>. Section 6 on the "enalty o' 6ne Ce)ree ,i)her=
k. Section 0 on the "rosecution under both the <evised "enal Code 2<"C3 and <.;. 1510/=
l. Section J on "enalties=
$. Section 1! on <eal-+i$e Collection o' +ra''ic Cata=
n. Section 1 on "reservation o' Co$puter Cata=
o. Section 14 on Cisclosure o' Co$puter Cata=
p. Section 1/ on Search, Seizure and 79a$ination o' Co$puter Cata=
D. Section 10 on Cestruction o' Co$puter Cata=
r. Section 19 on <estrictin) or 8lockin) ;ccess to Co$puter Cata=
s. Section !5 on 6bstruction o' Justice=
t. Section !4 on Cybercri$e :nvesti)ation and Coordinatin) Center 2C:CC3= and
u. Section !62a3 on C:CCPs "o(ers and Functions.
So$e petitioners also raise the constitutionality o' related ;rticles /, /4, 61, and 6! o' the <"C on the cri$e o' libel.
+he <ulin)s o' the Court
Section 42a3213
Section 42a3213 provides*
Section 4. Cybercri$e 6''enses. Q +he 'ollo(in) acts constitute the o''ense o' cybercri$e punishable under this ;ct*
2a3 6''enses a)ainst the con'identiality, inte)rity and availability o' co$puter data and syste$s*
213 :lle)al ;ccess. Q +he access to the (hole or any part o' a co$puter syste$ (ithout ri)ht.
"etitioners contend that Section 42a3213 'ails to $eet the strict scrutiny standard reDuired o' la(s that inter'ere (ith the 'unda$ental
ri)hts o' the people and should thus be struck do(n.
+he Court has in a (ay 'ound the strict scrutiny standard, an ;$erican constitutional construct,
1
use'ul in deter$inin) the
constitutionality o' la(s that tend to tar)et a class o' thin)s or persons. ;ccordin) to this standard, a le)islative classi'ication that
i$per$issibly inter'eres (ith the e9ercise o' 'unda$ental ri)ht or operates to the peculiar class disadvanta)e o' a suspect class is
presu$ed unconstitutional. +he burden is on the )overn$ent to prove that the classi'ication is necessary to achieve a co$pellin)
state interest and that it is the least restrictive $eans to protect such interest.
!
%ater, the strict scrutiny standard (as used to assess
the validity o' la(s dealin) (ith the re)ulation o' speech, )ender, or race as (ell as other 'unda$ental ri)hts, as e9pansion 'ro$ its
earlier applications to eDual protection.
:n the cases be'ore it, the Court 'inds nothin) in Section 42a3213 that calls 'or the application o' the strict scrutiny standard since no
'unda$ental 'reedo$, like speech, is involved in punishin) (hat is essentially a conde$nable act Q accessin) the co$puter syste$
o' another (ithout ri)ht. :t is a universally conde$ned conduct.
4
"etitioners o' course 'ear that this section (ill >eopardize the (ork o' ethical hackers, pro'essionals (ho e$ploy tools and techniDues
used by cri$inal hackers but (ould neither da$a)e the tar)et syste$s nor steal in'or$ation. 7thical hackers evaluate the tar)et
syste$Ps security and report back to the o(ners the vulnerabilities they 'ound in it and )ive instructions 'or ho( these can be
re$edied. 7thical hackers are the eDuivalent o' independent auditors (ho co$e into an or)anization to veri'y its bookkeepin)
records.
/
8esides, a clientPs en)a)e$ent o' an ethical hacker reDuires an a)ree$ent bet(een the$ as to the e9tent o' the search, the
$ethods to be used, and the syste$s to be tested. +his is re'erred to as the E)et out o' >ail 'ree card.E
6
Since the ethical hacker does
his >ob (ith prior per$ission 'ro$ the client, such per$ission (ould insulate hi$ 'ro$ the covera)e o' Section 42a3213.
Section 42a323 o' the Cybercri$e %a(
Section 42a323 provides*
Section 4. Cybercri$e 6''enses. Q +he 'ollo(in) acts constitute the o''ense o' cybercri$e punishable under this ;ct*
2a3 6''enses a)ainst the con'identiality, inte)rity and availability o' co$puter data and syste$s*
9 9 9 9
23 Cata :nter'erence. Q +he intentional or reckless alteration, da$a)in), deletion or deterioration o' co$puter data, electronic
docu$ent, or electronic data $essa)e, (ithout ri)ht, includin) the introduction or trans$ission o' viruses.
"etitioners clai$ that Section 42a323 su''ers 'ro$ overbreadth in that, (hile it seeks to discoura)e data inter'erence, it intrudes into
the area o' protected speech and e9pression, creatin) a chillin) and deterrent e''ect on these )uaranteed 'reedo$s.
Ander the overbreadth doctrine, a proper )overn$ental purpose, constitutionally sub>ect to state re)ulation, $ay not be achieved by
$eans that unnecessarily s(eep its sub>ect broadly, thereby invadin) the area o' protected 'reedo$s.
0
8ut Section 42a323 does not
encroach on these 'reedo$s at all. :t si$ply punishes (hat essentially is a 'or$ o' vandalis$,
J
the act o' (ill'ully destroyin) (ithout
ri)ht the thin)s that belon) to others, in this case their co$puter data, electronic docu$ent, or electronic data $essa)e. Such act
has no connection to )uaranteed 'reedo$s. +here is no 'reedo$ to destroy other peoplePs co$puter syste$s and private
docu$ents.
;ll penal la(s, like the cybercri$e la(, have o' course an inherent chillin) e''ect, an in terrore$ e''ect
9
or the 'ear o' possible
prosecution that han)s on the heads o' citizens (ho are $inded to step beyond the boundaries o' (hat is proper. 8ut to prevent the
State 'ro$ le)islatin) cri$inal la(s because they instill such kind o' 'ear is to render the state po(erless in addressin) and
penalizin) socially har$'ul conduct.
15
,ere, the chillin) e''ect that results in paralysis is an illusion since Section 42a323 clearly
describes the evil that it seeks to punish and creates no tendency to inti$idate the 'ree e9ercise o' onePs constitutional ri)hts.
8esides, the overbreadth challen)e places on petitioners the heavy burden o' provin) that under no set o' circu$stances (ill Section
42a323 be valid.
11
"etitioner has 'ailed to dischar)e this burden.
Section 42a3263 o' the Cybercri$e %a(
Section 42a3263 provides*
Section 4. Cybercri$e 6''enses. Q +he 'ollo(in) acts constitute the o''ense o' cybercri$e punishable under this ;ct*
2a3 6''enses a)ainst the con'identiality, inte)rity and availability o' co$puter data and syste$s*
9 9 9 9
263 Cyber-sDuattin). Q +he acDuisition o' do$ain na$e over the internet in bad 'aith to pro'it, $islead, destroy the reputation, and
deprive others 'ro$ re)isterin) the sa$e, i' such a do$ain na$e is*
2i3 Si$ilar, identical, or con'usin)ly si$ilar to an e9istin) trade$ark re)istered (ith the appropriate )overn$ent
a)ency at the ti$e o' the do$ain na$e re)istration=
2ii3 :dentical or in any (ay si$ilar (ith the na$e o' a person other than the re)istrant, in case o' a personal na$e=
and
2iii3 ;cDuired (ithout ri)ht or (ith intellectual property interests in it.
"etitioners clai$ that Section 42a3263 or cyber-sDuattin) violates the eDual protection clause
1!
in that, not bein) narro(ly tailored, it
(ill cause a user usin) his real na$e to su''er the sa$e 'ate as those (ho use aliases or take the na$e o' another in satire, parody,
or any other literary device. For e9a$ple, supposin) there e9ists a (ell kno(n billionaire-philanthropist na$ed EJulio @andol'o,E the
la( (ould punish 'or cyber-sDuattin) both the person (ho re)isters such na$e because he clai$s it to be his pseudo-na$e and
another (ho re)isters the na$e because it happens to be his real na$e. "etitioners clai$ that, considerin) the substantial distinction
bet(een the t(o, the la( should reco)nize the di''erence.
8ut there is no real di''erence (hether he uses EJulio @andol'oE (hich happens to be his real na$e or use it as a pseudo-na$e 'or it
is the evil purpose 'or (hich he uses the na$e that the la( conde$ns. +he la( is reasonable in penalizin) hi$ 'or acDuirin) the
do$ain na$e in bad 'aith to pro'it, $islead, destroy reputation, or deprive others (ho are not ill-$otivated o' the ri)ht'ul opportunity
o' re)isterin) the sa$e. +he challen)e to the constitutionality o' Section 42a3263 on )round o' denial o' eDual protection is baseless.
Section 42b323 o' the Cybercri$e %a(
Section 42b323 provides*
Section 4. Cybercri$e 6''enses. Q +he 'ollo(in) acts constitute the o''ense o' cybercri$e punishable under this ;ct*
9 9 9 9
b3 Co$puter-related 6''enses*
9 9 9 9
23 Co$puter-related :dentity +he't. Q +he intentional acDuisition, use, $isuse, trans'er, possession, alteration, or deletion o'
identi'yin) in'or$ation belon)in) to another, (hether natural or >uridical, (ithout ri)ht* "rovided* that i' no da$a)e has yet been
caused, the penalty i$posable shall be one 213 de)ree lo(er.
"etitioners clai$ that Section 42b323 violates the constitutional ri)hts to due process and to privacy and correspondence, and
trans)resses the 'reedo$ o' the press.
+he ri)ht to privacy, or the ri)ht to be let alone, (as institutionalized in the 19J0 Constitution as a 'acet o' the ri)ht protected by the
)uarantee a)ainst unreasonable searches and seizures.
1
8ut the Court ackno(led)ed its e9istence as early as 196J in &or'e v.
&utuc,
14
it ruled that the ri)ht to privacy e9ists independently o' its identi'ication (ith liberty= it is in itsel' 'ully deservin) o'
constitutional protection.
<elevant to any discussion o' the ri)ht to privacy is the concept kno(n as the ERones o' "rivacy.E +he Court e9plained in E:n the
&atter o' the "etition 'or :ssuance o' Writ o' ,abeas Corpus o' Sabio v. Senator @ordonE
1/
the relevance o' these zones to the ri)ht to
privacy*
Rones o' privacy are reco)nized and protected in our la(s. Within these zones, any 'or$ o' intrusion is i$per$issible unless
e9cused by la( and in accordance (ith custo$ary le)al process. +he $eticulous re)ard (e accord to these zones arises not only
'ro$ our conviction that the ri)ht to privacy is a Econstitutional ri)htE and Ethe ri)ht $ost valued by civilized $en,E but also 'ro$ our
adherence to the Aniversal Ceclaration o' ,u$an <i)hts (hich $andates that, Eno one shall be sub>ected to arbitrary inter'erence
(ith his privacyE and Eeveryone has the ri)ht to the protection o' the la( a)ainst such inter'erence or attacks.E
+(o constitutional )uarantees create these zones o' privacy* 2a3 the ri)ht a)ainst unreasonable searches
16
and seizures, (hich is the
basis o' the ri)ht to be let alone, and 2b3 the ri)ht to privacy o' co$$unication and correspondence.
10
:n assessin) the challen)e that
the State has i$per$issibly intruded into these zones o' privacy, a court $ust deter$ine (hether a person has e9hibited a
reasonable e9pectation o' privacy and, i' so, (hether that e9pectation has been violated by unreasonable )overn$ent intrusion.
1J
+he usual identi'yin) in'or$ation re)ardin) a person includes his na$e, his citizenship, his residence address, his contact nu$ber,
his place and date o' birth, the na$e o' his spouse i' any, his occupation, and si$ilar data.
19
+he la( punishes those (ho acDuire or
use such identi'yin) in'or$ation (ithout ri)ht, i$plicitly to cause da$a)e. "etitioners si$ply 'ail to sho( ho( )overn$ent e''ort to
curb co$puter-related identity the't violates the ri)ht to privacy and correspondence as (ell as the ri)ht to due process o' la(.
;lso, the char)e o' invalidity o' this section based on the overbreadth doctrine (ill not hold (ater since the speci'ic conducts
proscribed do not intrude into )uaranteed 'reedo$s like speech. Clearly, (hat this section re)ulates are speci'ic actions* the
acDuisition, use, $isuse or deletion o' personal identi'yin) data o' another. +here is no 'unda$ental ri)ht to acDuire anotherPs
personal data.
Further, petitioners 'ear that Section 42b323 violates the 'reedo$ o' the press in that >ournalists (ould be hindered 'ro$ accessin)
the unrestricted user account o' a person in the ne(s to secure in'or$ation about hi$ that could be published. 8ut this is not the
essence o' identity the't that the la( seeks to prohibit and punish. 7vidently, the the't o' identity in'or$ation $ust be intended 'or an
ille)iti$ate purpose. &oreover, acDuirin) and disse$inatin) in'or$ation $ade public by the user hi$sel' cannot be re)arded as a
'or$ o' the't.
+he Court has de'ined intent to )ain as an internal act (hich can be established throu)h the overt acts o' the o''ender, and it $ay be
presu$ed 'ro$ the 'urtive takin) o' use'ul property pertainin) to another, unless special circu$stances reveal a di''erent intent on the
part o' the perpetrator.
!5
;s such, the press, (hether in Duest o' ne(s reportin) or social investi)ation, has nothin) to 'ear since a
special circu$stance is present to ne)ate intent to )ain (hich is reDuired by this Section.
Section 42c3213 o' the Cybercri$e %a(
Section 42c3213 provides*
Sec. 4. Cybercri$e 6''enses.Q +he 'ollo(in) acts constitute the o''ense o' cybercri$e punishable under this ;ct*
9 9 9 9
2c3 Content-related 6''enses*
213 Cyberse9.Q +he (ill'ul en)a)e$ent, $aintenance, control, or operation, directly or indirectly, o' any lascivious e9hibition o' se9ual
or)ans or se9ual activity, (ith the aid o' a co$puter syste$, 'or 'avor or consideration.
"etitioners clai$ that the above violates the 'reedo$ o' e9pression clause o' the Constitution.
!1
+hey e9press 'ear that private
co$$unications o' se9ual character bet(een husband and (i'e or consentin) adults, (hich are not re)arded as cri$es under the
penal code, (ould no( be re)arded as cri$es (hen done E'or 'avorE in cyberspace. :n co$$on usa)e, the ter$ E'avorE includes
E)racious kindness,E Ea special privile)e or ri)ht )ranted or conceded,E or Ea token o' love 2as a ribbon3 usually (orn
conspicuously.E
!!
+his $eanin) )iven to the ter$ E'avorE e$braces socially tolerated trysts. +he la( as (ritten (ould invite la(
en'orce$ent a)encies into the bedroo$s o' $arried couples or consentin) individuals.
8ut the deliberations o' the 8ica$eral Co$$ittee o' Con)ress on this section o' the Cybercri$e "revention ;ct )ive a proper
perspective on the issue. +hese deliberations sho( a lack o' intent to penalize a Eprivate sho(in) 9 9 9 bet(een and a$on) t(o
private persons 9 9 9 althou)h that $ay be a 'or$ o' obscenity to so$e.E
!
+he understandin) o' those (ho dre( up the cybercri$e
la( is that the ele$ent o' Een)a)in) in a businessE is necessary to constitute the ille)al cyberse9.
!4
+he ;ct actually seeks to punish
cyber prostitution, (hite slave trade, and porno)raphy 'or 'avor and consideration. +his includes interactive prostitution and
porno)raphy, i.e., by (ebca$.
!/
+he sub>ect o' Section 42c3213Hlascivious e9hibition o' se9ual or)ans or se9ual activityHis not novel. ;rticle !51 o' the <"C
punishes Eobscene publications and e9hibitions and indecent sho(s.E +he ;nti-+ra''ickin) in "ersons ;ct o' !55 penalizes those
(ho E$aintain or hire a person to en)a)e in prostitution or porno)raphy.E
!6
+he la( de'ines prostitution as any act, transaction,
sche$e, or desi)n involvin) the use o' a person by another, 'or se9ual intercourse or lascivious conduct in e9chan)e 'or $oney,
pro'it, or any other consideration.
!0
+he case o' #o)ales v. "eople!J sho(s the e9tent to (hich the State can re)ulate $aterials that serve no other purpose than satis'y
the $arket 'or violence, lust, or porno)raphy.
!9
+he Court (ei)hed the property ri)hts o' individuals a)ainst the public (el'are. "rivate
property, i' containin) porno)raphic $aterials, $ay be 'or'eited and destroyed. %ike(ise, en)a)in) in se9ual acts privately throu)h
internet connection, perceived by so$e as a ri)ht, has to be balanced (ith the $andate o' the State to eradicate (hite slavery and
the e9ploitation o' (o$en.
:n any event, consentin) adults are protected by the (ealth o' >urisprudence delineatin) the bounds o' obscenity.
5
+he Court (ill not
declare Section 42c3213 unconstitutional (here it stands a construction that $akes it apply only to persons en)a)ed in the business o'
$aintainin), controllin), or operatin), directly or indirectly, the lascivious e9hibition o' se9ual or)ans or se9ual activity (ith the aid o'
a co$puter syste$ as Con)ress has intended.
Section 42c32!3 o' the Cybercri$e %a(
Section 42c32!3 provides*
Sec. 4. Cybercri$e 6''enses. Q +he 'ollo(in) acts constitute the o''ense o' cybercri$e punishable under this ;ct*
9 9 9 9
2c3 Content-related 6''enses*
9 9 9 9
2!3 Child "orno)raphy. H +he unla('ul or prohibited acts de'ined and punishable by <epublic ;ct #o. 900/ or the ;nti-Child
"orno)raphy ;ct o' !559, co$$itted throu)h a co$puter syste$* "rovided, +hat the penalty to be i$posed shall be 213 one de)ree
hi)her than that provided 'or in <epublic ;ct #o. 900/.
:t see$s that the above $erely e9pands the scope o' the ;nti-Child "orno)raphy ;ct o' !559
1
2;C";3 to cover identical activities in
cyberspace. :n theory, nothin) prevents the )overn$ent 'ro$ invokin) the ;C"; (hen prosecutin) persons (ho co$$it child
porno)raphy usin) a co$puter syste$. ;ctually, ;C";Ps de'inition o' child porno)raphy already e$braces the use o' Eelectronic,
$echanical, di)ital, optical, $a)netic or any other $eans.E #otably, no one has Duestioned this ;C"; provision.
6' course, the la( $akes the penalty hi)her by one de)ree (hen the cri$e is co$$itted in cyberspace. 8ut no one can co$plain
since the intensity or duration o' penalty is a le)islative prero)ative and there is rational basis 'or such hi)her penalty.
!
+he potential
'or uncontrolled proli'eration o' a particular piece o' child porno)raphy (hen uploaded in the cyberspace is incalculable.
"etitioners point out that the provision o' ;C"; that $akes it unla('ul 'or any person to Eproduce, direct, $anu'acture or create any
'or$ o' child porno)raphyE
clearly relates to the prosecution o' persons (ho aid and abet the core o''enses that ;C"; seeks to
punish.
4
"etitioners are (ary that a person (ho $erely doodles on paper and i$a)ines a se9ual abuse o' a 16-year-old is not
cri$inally liable 'or producin) child porno)raphy but one (ho 'or$ulates the idea on his laptop (ould be. Further, i' the author
bounces o'' his ideas on +(itter, anyone (ho replies to the t(eet could be considered aidin) and abettin) a cybercri$e.
+he Duestion o' aidin) and abettin) the o''ense by si$ply co$$entin) on it (ill be discussed else(here belo(. For no( the Court
$ust hold that the constitutionality o' Section 42c32!3 is not success'ully challen)ed.
Section 42c323 o' the Cybercri$e %a(
Section 42c323 provides*
Sec. 4. Cybercri$e 6''enses. Q +he 'ollo(in) acts constitute the o''ense o' cybercri$e punishable under this ;ct*
9 9 9 9
2c3 Content-related 6''enses*
9 9 9 9
23 Ansolicited Co$$ercial Co$$unications. Q +he trans$ission o' co$$ercial electronic co$$unication (ith the use o' co$puter
syste$ (hich seeks to advertise, sell, or o''er 'or sale products and services are prohibited unless*
2i3 +here is prior a''ir$ative consent 'ro$ the recipient= or
2ii3 +he pri$ary intent o' the co$$unication is 'or service andBor ad$inistrative announce$ents 'ro$ the sender to its
e9istin) users, subscribers or custo$ers= or
2iii3 +he 'ollo(in) conditions are present*
2aa3 +he co$$ercial electronic co$$unication contains a si$ple, valid, and reliable (ay 'or the recipient to
re>ect receipt o' 'urther co$$ercial electronic $essa)es 2opt-out3 'ro$ the sa$e source=
2bb3 +he co$$ercial electronic co$$unication does not purposely dis)uise the source o' the electronic
$essa)e= and
2cc3 +he co$$ercial electronic co$$unication does not purposely include $isleadin) in'or$ation in any part
o' the $essa)e in order to induce the recipients to read the $essa)e.
+he above penalizes the trans$ission o' unsolicited co$$ercial co$$unications, also kno(n as Espa$.E +he ter$ Espa$E sur'aced
in early internet chat roo$s and interactive 'antasy )a$es. 6ne (ho repeats the sa$e sentence or co$$ent (as said to be $akin)
a Espa$.E +he ter$ re'erred to a &onty "ythonPs Flyin) Circus scene in (hich actors (ould keep sayin) ESpa$, Spa$, Spa$, and
Spa$E (hen readin) options 'ro$ a $enu.
/
+he @overn$ent, represented by the Solicitor @eneral, points out that unsolicited co$$ercial co$$unications or spa$s are a
nuisance that (astes the stora)e and net(ork capacities o' internet service providers, reduces the e''iciency o' co$$erce and
technolo)y, and inter'eres (ith the o(nerPs peace'ul en>oy$ent o' his property. +rans$ittin) spa$s a$ounts to trespass to onePs
privacy since the person sendin) out spa$s enters the recipientPs do$ain (ithout prior per$ission. +he 6S@ contends that
co$$ercial speech en>oys less protection in la(.
8ut, 'irstly, the )overn$ent presents no basis 'or holdin) that unsolicited electronic ads reduce the Ee''iciency o' co$puters.E
Secondly, people, be'ore the arrival o' the a)e o' co$puters, have already been receivin) such unsolicited ads by $ail. +hese have
never been outla(ed as nuisance since people $i)ht have interest in such ads. What $atters is that the recipient has the option o'
not openin) or readin) these $ail ads. +hat is true (ith spa$s. +heir recipients al(ays have the option to delete or not to read the$.
+o prohibit the trans$ission o' unsolicited ads (ould deny a person the ri)ht to read his e$ails, even unsolicited co$$ercial ads
addressed to hi$. Co$$ercial speech is a separate cate)ory o' speech (hich is not accorded the sa$e level o' protection as that
)iven to other constitutionally )uaranteed 'or$s o' e9pression but is nonetheless entitled to protection.
6
+he State cannot rob hi$ o'
this ri)ht (ithout violatin) the constitutionally )uaranteed 'reedo$ o' e9pression. Ansolicited advertise$ents are le)iti$ate 'or$s o'
e9pression.
;rticles /, /4, and // o' the "enal Code
Section 42c3243 o' the Cyber Cri$e %a(
"etitioners dispute the constitutionality o' both the penal code provisions on libel as (ell as Section 42c3243 o' the Cybercri$e
"revention ;ct on cyberlibel.
+he <"C provisions on libel read*
;rt. /. Ce'inition o' libel. H ; libel is public and $alicious i$putation o' a cri$e, or o' a vice or de'ect, real or i$a)inary, or any act,
o$ission, condition, status, or circu$stance tendin) to cause the dishonor, discredit, or conte$pt o' a natural or >uridical person, or
to blacken the $e$ory o' one (ho is dead.
;rt. /4. <eDuire$ent 'or publicity. H 7very de'a$atory i$putation is presu$ed to be $alicious, even i' it be true, i' no )ood
intention and >usti'iable $otive 'or $akin) it is sho(n, e9cept in the 'ollo(in) cases*
1. ; private co$$unication $ade by any person to another in the per'or$ance o' any le)al, $oral or social duty= and
!. ; 'air and true report, $ade in )ood 'aith, (ithout any co$$ents or re$arks, o' any >udicial, le)islative or other
o''icial proceedin)s (hich are not o' con'idential nature, or o' any state$ent, report or speech delivered in said
proceedin)s, or o' any other act per'or$ed by public o''icers in the e9ercise o' their 'unctions.
;rt. //. %ibel $eans by (ritin)s or si$ilar $eans. H ; libel co$$itted by $eans o' (ritin), printin), litho)raphy, en)ravin), radio,
phono)raph, paintin), theatrical e9hibition, cine$ato)raphic e9hibition, or any si$ilar $eans, shall be punished by prision
correccional in its $ini$u$ and $ediu$ periods or a 'ine ran)in) 'ro$ !55 to 6,555 pesos, or both, in addition to the civil action
(hich $ay be brou)ht by the o''ended party.
+he libel provision o' the cybercri$e la(, on the other hand, $erely incorporates to 'or$ part o' it the provisions o' the <"C on libel.
+hus Section 42c3243 reads*
Sec. 4. Cybercri$e 6''enses. H +he 'ollo(in) acts constitute the o''ense o' cybercri$e punishable under this ;ct*
9 9 9 9
2c3 Content-related 6''enses*
9 9 9 9
243 %ibel. H +he unla('ul or prohibited acts o' libel as de'ined in ;rticle // o' the <evised "enal Code, as a$ended, co$$itted
throu)h a co$puter syste$ or any other si$ilar $eans (hich $ay be devised in the 'uture.
"etitioners la$ent that libel provisions o' the penal code
0
and, in e''ect, the libel provisions o' the cybercri$e la( carry (ith the$ the
reDuire$ent o' Epresu$ed $aliceE even (hen the latest >urisprudence already replaces it (ith the hi)her standard o' Eactual $aliceE
as a basis 'or conviction.
J
"etitioners ar)ue that in'errin) Epresu$ed $aliceE 'ro$ the accusedPs de'a$atory state$ent by virtue o'
;rticle /4 o' the penal code in'rin)es on his constitutionally )uaranteed 'reedo$ o' e9pression.
"etitioners (ould )o 'urther. +hey contend that the la(s on libel should be stricken do(n as unconstitutional 'or other(ise )ood
>urisprudence reDuirin) Eactual $aliceE could easily be overturned as the Court has done in Fer$in v. "eople
9
even (here the
o''ended parties happened to be public 'i)ures.
+he ele$ents o' libel are* 2a3 the alle)ation o' a discreditable act or condition concernin) another= 2b3 publication o' the char)e= 2c3
identity o' the person de'a$ed= and 2d3 e9istence o' $alice.
45
+here is Eactual $aliceE or $alice in 'act
41
(hen the o''ender $akes the de'a$atory state$ent (ith the kno(led)e that it is 'alse or
(ith reckless disre)ard o' (hether it (as 'alse or not.
4!
+he reckless disre)ard standard used here reDuires a hi)h de)ree o'
a(areness o' probable 'alsity. +here $ust be su''icient evidence to per$it the conclusion that the accused in 'act entertained serious
doubts as to the truth o' the state$ent he published. @ross or even e9tre$e ne)li)ence is not su''icient to establish actual $alice.
4
+he prosecution bears the burden o' provin) the presence o' actual $alice in instances (here such ele$ent is reDuired to establish
)uilt. +he de'ense o' absence o' actual $alice, even (hen the state$ent turns out to be 'alse, is available (here the o''ended party
is a public o''icial or a public 'i)ure, as in the cases o' ?asDuez 2a baran)ay o''icial3 and 8or>al 2the 79ecutive Cirector, First #ational
Con'erence on %and +ransportation3. Since the penal code and i$plicitly, the cybercri$e la(, $ainly tar)et libel a)ainst private
persons, the Court reco)nizes that these la(s i$ply a stricter standard o' E$aliceE to convict the author o' a de'a$atory state$ent
(here the o''ended party is a public 'i)ure. SocietyPs interest and the $aintenance o' )ood )overn$ent de$and a 'ull discussion o'
public a''airs.
44
"arenthetically, the Court cannot accept the proposition that its rulin) in Fer$in disre)arded the hi)her standard o' actual $alice or
$alice in 'act (hen it 'ound Cristinelli Fer$in )uilty o' co$$ittin) libel a)ainst co$plainants (ho (ere public 'i)ures. ;ctually, the
Court 'ound the presence o' $alice in 'act in that case. +hus*
:t can be )leaned 'ro$ her testi$ony that petitioner had the $otive to $ake de'a$atory i$putations a)ainst co$plainants. +hus,
petitioner cannot, by si$ply $akin) a )eneral denial, convince us that there (as no $alice on her part. ?erily, not only (as there
$alice in la(, the article bein) $alicious in itsel', but there (as also $alice in 'act, as there (as $otive to talk ill a)ainst
co$plainants durin) the electoral ca$pai)n. 27$phasis ours3
:ndeed, the Court took into account the relatively (ide lee(ay )iven to utterances a)ainst public 'i)ures in the above case, cine$a
and television personalities, (hen it $odi'ied the penalty o' i$prison$ent to >ust a 'ine o'"6,555.55.
8ut, (here the o''ended party is a private individual, the prosecution need not prove the presence o' $alice. +he la( e9plicitly
presu$es its e9istence 2$alice in la(3 'ro$ the de'a$atory character o' the assailed state$ent.
4/
For his de'ense, the accused $ust
sho( that he has a >usti'iable reason 'or the de'a$atory state$ent even i' it (as in 'act true.
46
"etitioners peddle the vie( that both the penal code and the Cybercri$e "revention ;ct violate the countryPs obli)ations under the
:nternational Covenant o' Civil and "olitical <i)hts 2:CC"<3. +hey point out that in ;donis v. <epublic o' the "hilippines,
40
the Anited
#ations ,u$an <i)hts Co$$ittee 2A#,<C3 cited its @eneral Co$$ent 4 to the e''ect that penal de'a$ation la(s should include
the de'ense o' truth.
8ut @eneral Co$$ent 4 does not say that the truth o' the de'a$atory state$ent should constitute an all-enco$passin) de'ense. ;s
it happens, ;rticle 61 reco)nizes truth as a de'ense but under the condition that the accused has been pro$pted in $akin) the
state$ent by )ood $otives and 'or >usti'iable ends. +hus*
;rt. 61. "roo' o' the truth. H :n every cri$inal prosecution 'or libel, the truth $ay be )iven in evidence to the court and i' it appears
that the $atter char)ed as libelous is true, and, $oreover, that it (as published (ith )ood $otives and 'or >usti'iable ends, the
de'endants shall be acDuitted.
"roo' o' the truth o' an i$putation o' an act or o$ission not constitutin) a cri$e shall not be ad$itted, unless the i$putation shall
have been $ade a)ainst @overn$ent e$ployees (ith respect to 'acts related to the dischar)e o' their o''icial duties.
:n such cases i' the de'endant proves the truth o' the i$putation $ade by hi$, he shall be acDuitted.
8esides, the A#,<C did not actually en>oin the "hilippines, as petitioners ur)e, to decri$inalize libel. :t si$ply su))ested that
de'a$ation la(s be cra'ted (ith care to ensure that they do not sti'le 'reedo$ o' e9pression.
4J
:ndeed, the :CC"< states that althou)h
everyone should en>oy 'reedo$ o' e9pression, its e9ercise carries (ith it special duties and responsibilities. Free speech is not
absolute. :t is sub>ect to certain restrictions, as $ay be necessary and as $ay be provided by la(.
49
+he Court a)rees (ith the Solicitor @eneral that libel is not a constitutionally protected speech and that the )overn$ent has an
obli)ation to protect private individuals 'ro$ de'a$ation. :ndeed, cyberlibel is actually not a ne( cri$e since ;rticle /, in relation to
;rticle // o' the penal code, already punishes it. :n e''ect, Section 42c3243 above $erely a''ir$s that online de'a$ation constitutes
Esi$ilar $eansE 'or co$$ittin) libel.
8ut the CourtPs acDuiescence )oes only inso'ar as the cybercri$e la( penalizes the author o' the libelous state$ent or article.
Cyberlibel brin)s (ith it certain intricacies, unheard o' (hen the penal code provisions on libel (ere enacted. +he culture associated
(ith internet $edia is distinct 'ro$ that o' print.
+he internet is characterized as encoura)in) a 'ree(heelin), anythin)-)oes (ritin) style.
/5
:n a sense, they are a (orld apart in ter$s
o' Duickness o' the readerPs reaction to de'a$atory state$ents posted in cyberspace, 'acilitated by one-click reply options o''ered by
the net(orkin) site as (ell as by the speed (ith (hich such reactions are disse$inated do(n the line to other internet users.
Whether these reactions to de'a$atory state$ent posted on the internet constitute aidin) and abettin) libel, acts that Section / o' the
cybercri$e la( punishes, is another $atter that the Court (ill deal (ith ne9t in relation to Section / o' the la(.
Section / o' the Cybercri$e %a(
Section / provides*
Sec. /. 6ther 6''enses. H +he 'ollo(in) acts shall also constitute an o''ense*
2a3 ;idin) or ;bettin) in the Co$$ission o' Cybercri$e. Q ;ny person (ho (ill'ully abets or aids in the co$$ission o'
any o' the o''enses enu$erated in this ;ct shall be held liable.
2b3 ;tte$pt in the Co$$ission o' Cybercri$e. H ;ny person (ho (ill'ully atte$pts to co$$it any o' the o''enses
enu$erated in this ;ct shall be held liable.
"etitioners assail the constitutionality o' Section / that renders cri$inally liable any person (ho (ill'ully abets or aids in the
co$$ission or atte$pts to co$$it any o' the o''enses enu$erated as cybercri$es. :t su''ers 'ro$ overbreadth, creatin) a chillin)
and deterrent e''ect on protected e9pression.
+he Solicitor @eneral contends, ho(ever, that the current body o' >urisprudence and la(s on aidin) and abettin) su''iciently protects
the 'reedo$ o' e9pression o' Enetizens,E the $ultitude that avail the$selves o' the services o' the internet. ,e points out that e9istin)
la(s and >urisprudence su''iciently delineate the $eanin) o' Eaidin) or abettin)E a cri$e as to protect the innocent. +he Solicitor
@eneral ar)ues that plain, ordinary, and co$$on usa)e is at ti$es su''icient to )uide la( en'orce$ent a)encies in en'orcin) the
la(.
/1
+he le)islature is not reDuired to de'ine every sin)le (ord contained in the la(s they cra't.
;idin) or abettin) has o' course (ell-de'ined $eanin) and application in e9istin) la(s. When a person aids or abets another in
destroyin) a 'orest,
/!
s$u))lin) $erchandise into the country,
/
or inter'erin) in the peace'ul picketin) o' laborers,
/4
his action is
essentially physical and so is susceptible to easy assess$ent as cri$inal in character. +hese 'or$s o' aidin) or abettin) lend
the$selves to the tests o' co$$on sense and hu$an e9perience.
8ut, (hen it co$es to certain cybercri$es, the (aters are $uddier and the line o' si)ht is so$e(hat blurred. +he idea o' Eaidin) or
abettin)E (ron)doin)s online threatens the hereto'ore popular and unchallen)ed do)$as o' cyberspace use.
;ccordin) to the !511 Southeast ;sia Ci)ital Consu$er <eport, \ o' Filipinos have accessed the internet (ithin a year, translatin)
to about 1 $illion users.
//
8ased on a recent survey, the "hilippines ranks 6th in the top 15 $ost en)a)ed countries 'or social
net(orkin).
/6
Social net(orkin) sites build social relations a$on) people (ho, 'or e9a$ple, share interests, activities, back)rounds,
or real-li'e connections.
/0
+(o o' the $ost popular o' these sites are Facebook and +(itter. ;s o' late !51!, 1.! billion people (ith shared interests use
Facebook to )et in touch.
/J
Asers re)ister at this site, create a personal pro'ile or an open book o' (ho they are, add other users as
'riends, and e9chan)e $essa)es, includin) auto$atic noti'ications (hen they update their pro'ile.
/9
; user can post a state$ent, a
photo, or a video on Facebook, (hich can be $ade visible to anyone, dependin) on the userPs privacy settin)s.
:' the post is $ade available to the public, $eanin) to everyone and not only to his 'riends, anyone on Facebook can react to the
postin), clickin) any o' several buttons o' pre'erences on the pro)ra$Ps screen such as E%ike,E ECo$$ent,E or EShare.E E%ikeE
si)ni'ies that the reader likes the postin) (hile ECo$$entE enables hi$ to post online his 'eelin)s or vie(s about the sa$e, such as
E+his is )reatOE When a Facebook user ESharesE a postin), the ori)inal Epostin)E (ill appear on his o(n Facebook pro'ile,
conseDuently $akin) it visible to his do(n-line Facebook Friends.
+(itter, on the other hand, is an internet social net(orkin) and $icroblo))in) service that enables its users to send and read short
te9t-based $essa)es o' up to 145 characters. +hese are kno(n as E+(eets.E &icroblo))in) is the practice o' postin) s$all pieces o'
di)ital contentH(hich could be in the 'or$ o' te9t, pictures, links, short videos, or other $ediaHon the internet. :nstead o' 'riends, a
+(itter user has EFollo(ers,E those (ho subscribe to this particular userPs posts, enablin) the$ to read the sa$e, and EFollo(in),E
those (ho$ this particular user is subscribed to, enablin) hi$ to read their posts. %ike Facebook, a +(itter user can $ake his t(eets
available only to his Follo(ers, or to the )eneral public. :' a post is available to the public, any +(itter user can E<et(eetE a )iven
postin). <et(eetin) is >ust repostin) or republishin) another personPs t(eet (ithout the need o' copyin) and pastin) it.
:n the cyber(orld, there are $any actors* a3 the blo))er (ho ori)inates the assailed state$ent= b3 the blo) service provider like
-ahoo= c3 the internet service provider like "%C+, S$art, @lobe, or Sun= d3 the internet ca'] that $ay have provided the co$puter
used 'or postin) the blo)= e3 the person (ho $akes a 'avorable co$$ent on the blo)= and '3 the person (ho posts a link to the blo)
site.
65
#o(, suppose &aria 2a blo))er3 $aintains a blo) on Word"ress.co$ 2blo) service provider3. She needs the internet to access
her blo) so she subscribes to Sun 8roadband 2:nternet Service "rovider3.
6ne day, &aria posts on her internet account the state$ent that a certain $arried public o''icial has an illicit a''air (ith a $ovie star.
%inda, one o' &ariaPs 'riends (ho sees this post, co$$ents online, E-es, this is so trueO +hey are so i$$oral.E &ariaPs ori)inal post is
then $ultiplied by her 'riends and the latterPs 'riends, and do(n the line to 'riends o' 'riends al$ost ad in'initu$. #ena, (ho is a
stran)er to both &aria and %inda, co$es across this blo), 'inds it interestin) and so shares the link to this apparently de'a$atory
blo) on her +(itter account. #enaPs EFollo(ersE then E<et(eetE the link to that blo) site.
"a$ela, a +(itter user, stu$bles upon a rando$ personPs E<et(eetE o' #enaPs ori)inal t(eet and posts this on her Facebook
account. :$$ediately, "a$elaPs Facebook Friends start %ikin) and $akin) Co$$ents on the assailed postin). ; lot o' the$ even
press the Share button, resultin) in the 'urther spread o' the ori)inal postin) into tens, hundreds, thousands, and )reater postin)s.
+he Duestion is* are online postin)s such as E%ikin)E an openly de'a$atory state$ent, ECo$$entin)E on it, or ESharin)E it (ith
others, to be re)arded as Eaidin) or abettin)IE :n libel in the physical (orld, i' #estor places on the o''ice bulletin board a s$all
poster that says, E;r$and is a thie'O,E he could certainly be char)ed (ith libel. :' <o)er, seein) the poster, (rites on it, E: like thisO,E
that could not be libel since he did not author the poster. :' ;rthur, passin) by and noticin) the poster, (rites on it, ECorrectO,E (ould
that be libelI #o, 'or he $erely e9presses a)ree$ent (ith the state$ent on the poster. ,e still is not its author. 8esides, it is not
clear i' aidin) or abettin) libel in the physical (orld is a cri$e.
8ut suppose #estor posts the blo), E;r$and is a thie'OE on a social net(orkin) site. Would a reader and his Friends or Follo(ers,
availin) the$selves o' any o' the E%ike,E ECo$$ent,E and EShareE reactions, be )uilty o' aidin) or abettin) libelI ;nd, in the co$ple9
(orld o' cyberspace e9pressions o' thou)hts, (hen (ill one be liable 'or aidin) or abettin) cybercri$esI Where is the venue o' the
cri$eI
79cept 'or the ori)inal author o' the assailed state$ent, the rest 2those (ho pressed %ike, Co$$ent and Share3 are essentially knee-
>erk senti$ents o' readers (ho $ay think little or haphazardly o' their response to the ori)inal postin). Will they be liable 'or aidin) or
abettin)I ;nd, considerin) the inherent i$possibility o' >oinin) hundreds or thousands o' respondin) EFriendsE or EFollo(ersE in the
cri$inal char)e to be 'iled in court, (ho (ill $ake a choice as to (ho should )o to >ail 'or the outbreak o' the challen)ed postin)I
+he old para$eters 'or en'orcin) the traditional 'or$ o' libel (ould be a sDuare pe) in a round hole (hen applied to cyberspace libel.
Anless the le)islature cra'ts a cyber libel la( that takes into account its uniDue circu$stances and culture, such la( (ill tend to
create a chillin) e''ect on the $illions that use this ne( $ediu$ o' co$$unication in violation o' their constitutionally-)uaranteed
ri)ht to 'reedo$ o' e9pression.
+he Anited States Supre$e Court 'aced the sa$e issue in <eno v. ;$erican Civil %iberties Anion,
61
a case involvin) the
constitutionality o' the Co$$unications Cecency ;ct o' 1996. +he la( prohibited 213 the kno(in) trans$ission, by $eans o' a
teleco$$unications device, o'
Eobscene or indecentE co$$unications to any recipient under 1J years o' a)e= and 2!3 the kno(in) use o' an interactive co$puter
service to send to a speci'ic person or persons under 1J years o' a)e or to display in a $anner available to a person under 1J years
o' a)e co$$unications that, in conte9t, depict or describe, in ter$s Epatently o''ensiveE as $easured by conte$porary co$$unity
standards, se9ual or e9cretory activities or or)ans.
+hose (ho challen)ed the ;ct clai$ that the la( violated the First ;$end$entPs )uarantee o' 'reedo$ o' speech 'or bein)
overbroad. +he A.S. Supre$e Court a)reed and ruled*
+he va)ueness o' the Co$$unications Cecency ;ct o' 1996 2CC;3, 40 A.S.C.S. U!!, is a $atter o' special concern 'or t(o
reasons. First, the CC; is a content-based re)ulation o' speech. +he va)ueness o' such a re)ulation raises special A.S. Const.
a$end. : concerns because o' its obvious chillin) e''ect on 'ree speech. Second, the CC; is a cri$inal statute. :n addition to the
opprobriu$ and sti)$a o' a cri$inal conviction, the CC; threatens violators (ith penalties includin) up to t(o years in prison 'or
each act o' violation. +he severity o' cri$inal sanctions $ay (ell cause speakers to re$ain silent rather than co$$unicate even
ar)uably unla('ul (ords, ideas, and i$a)es. ;s a practical $atter, this increased deterrent e''ect, coupled (ith the risk o'
discri$inatory en'orce$ent o' va)ue re)ulations, poses )reater A.S. Const. a$end. : concerns than those i$plicated by certain civil
re)ulations.
9 9 9 9
+he Co$$unications Cecency ;ct o' 1996 2CC;3, 40 A.S.C.S. U !!, presents a )reat threat o' censorin) speech that, in 'act, 'alls
outside the statute1s scope. @iven the va)ue contours o' the covera)e o' the statute, it unDuestionably silences so$e speakers
(hose $essa)es (ould be entitled to constitutional protection. +hat dan)er provides 'urther reason 'or insistin) that the statute not
be overly broad. +he CC;Ps burden on protected speech cannot be >usti'ied i' it could be avoided by a $ore care'ully dra'ted statute.
27$phasis ours3
%ibel in the cyberspace can o' course stain a personPs i$a)e (ith >ust one click o' the $ouse. Scurrilous state$ents can spread and
travel 'ast across the )lobe like bad ne(s. &oreover, cyberlibel o'ten )oes hand in hand (ith cyberbullyin) that oppresses the victi$,
his relatives, and 'riends, evokin) 'ro$ $ild to disastrous reactions. Still, a )overn$ental purpose, (hich seeks to re)ulate the use o'
this cyberspace co$$unication technolo)y to protect a personPs reputation and peace o' $ind, cannot adopt $eans that (ill
unnecessarily and broadly s(eep, invadin) the area o' protected 'reedo$s.
6!
:' such $eans are adopted, sel'-inhibition borne o' 'ear o' (hat sinister predica$ents a(ait internet users (ill suppress other(ise
robust discussion o' public issues. Ce$ocracy (ill be threatened and (ith it, all liberties. "enal la(s should provide reasonably clear
)uidelines 'or la( en'orce$ent o''icials and triers o' 'acts to prevent arbitrary and discri$inatory en'orce$ent.
6
+he ter$s Eaidin) or
abettin)E constitute broad s(eep that )enerates chillin) e''ect on those (ho e9press the$selves throu)h cyberspace posts,
co$$ents, and other $essa)es.
64
,ence, Section / o' the cybercri$e la( that punishes Eaidin) or abettin)E libel on the cyberspace
is a nullity.
When a penal statute encroaches upon the 'reedo$ o' speech, a 'acial challen)e )rounded on the void-'or-va)ueness doctrine is
acceptable. +he inapplicability o' the doctrine $ust be care'ully delineated. ;s Justice ;ntonio +. Carpio e9plained in his dissent in
<o$ualdez v. Co$$ission on 7lections,
6/
E(e $ust vie( these state$ents o' the Court on the inapplicability o' the overbreadth and
va)ueness doctrines to penal statutes as appropriate only inso'ar as these doctrines are used to $ount ^'acialP challen)es to penal
statutes not involvin) 'ree speech.E
:n an Eas appliedE challen)e, the petitioner (ho clai$s a violation o' his constitutional ri)ht can raise any constitutional )round Q
absence o' due process, lack o' 'air notice, lack o' ascertainable standards, overbreadth, or va)ueness. ,ere, one can challen)e the
constitutionality o' a statute only i' he asserts a violation o' his o(n ri)hts. :t prohibits one 'ro$ assailin) the constitutionality o' the
statute based solely on the violation o' the ri)hts o' third persons not be'ore the court. +his rule is also kno(n as the prohibition
a)ainst third-party standin).
66
8ut this rule ad$its o' e9ceptions. ; petitioner $ay 'or instance $ount a E'acialE challen)e to the constitutionality o' a statute even i'
he clai$s no violation o' his o(n ri)hts under the assailed statute (here it involves 'ree speech on )rounds o' overbreadth or
va)ueness o' the statute.
+he rationale 'or this e9ception is to counter the Echillin) e''ectE on protected speech that co$es 'ro$ statutes violatin) 'ree speech.
; person (ho does not kno( (hether his speech constitutes a cri$e under an overbroad or va)ue la( $ay si$ply restrain hi$sel'
'ro$ speakin) in order to avoid bein) char)ed o' a cri$e. +he overbroad or va)ue la( thus chills hi$ into silence.
60
;s already stated, the cyberspace is an inco$parable, pervasive $ediu$ o' co$$unication. :t is inevitable that any )overn$ent
threat o' punish$ent re)ardin) certain uses o' the $ediu$ creates a chillin) e''ect on the constitutionally-protected 'reedo$ o'
e9pression o' the )reat $asses that use it. :n this case, the particularly co$ple9 (eb o' interaction on social $edia (ebsites (ould
)ive la( en'orcers such latitude that they could arbitrarily or selectively en'orce the la(.
Who is to decide (hen to prosecute persons (ho boost the visibility o' a postin) on the internet by likin) itI #etizens are not )iven
E'air noticeE or (arnin) as to (hat is cri$inal conduct and (hat is la('ul conduct. When a case is 'iled, ho( (ill the court ascertain
(hether or not one netizenPs co$$ent aided and abetted a cybercri$e (hile another co$$ent did notI
6' course, i' the ECo$$entE does not $erely react to the ori)inal postin) but creates an alto)ether ne( de'a$atory story a)ainst
;r$and like E,e beats his (i'e and children,E then that should be considered an ori)inal postin) published on the internet. 8oth the
penal code and the cybercri$e la( clearly punish authors o' de'a$atory publications. &ake no $istake, libel destroys reputations
that society values. ;llo(ed to cascade in the internet, it (ill destroy relationships and, under certain circu$stances, (ill )enerate
en$ity and tension bet(een social or econo$ic )roups, races, or reli)ions, e9acerbatin) e9istin) tension in their relationships.
:n re)ard to the cri$e that tar)ets child porno)raphy, (hen E@oo)le procures, stores, and inde9es child porno)raphy and 'acilitates
the co$pletion o' transactions involvin) the disse$ination o' child porno)raphy,E does this $ake @oo)le and its users aiders and
abettors in the co$$ission o' child porno)raphy cri$esI
6J
8yars hi)hli)hts a 'eature in the ;$erican la( on child porno)raphy that
the Cybercri$es la( lacksHthe e9e$ption o' a provider or notably a plain user o' interactive co$puter service 'ro$ civil liability 'or
child porno)raphy as 'ollo(s*
#o provider or user o' an interactive co$puter service shall be treated as the publisher or speaker o' any in'or$ation provided by
another in'or$ation content provider and cannot be held civilly liable 'or any action voluntarily taken in )ood 'aith to restrict access to
or availability o' $aterial that the provider or user considers to be obscene...(hether or not such $aterial is constitutionally
protected.
69
When a person replies to a +(eet containin) child porno)raphy, he e''ectively republishes it (hether (ittin)ly or un(ittin)ly. Coes
this $ake hi$ a (illin) acco$plice to the distribution o' child porno)raphyI When a user do(nloads the Facebook $obile
application, the user $ay )ive consent to Facebook to access his contact details. :n this (ay, certain in'or$ation is 'or(arded to third
parties and unsolicited co$$ercial co$$unication could be disse$inated on the basis o' this in'or$ation.
05
;s the source o' this
in'or$ation, is the user aidin) the distribution o' this co$$unicationI +he le)islature needs to address this clearly to relieve users o'
annoyin) 'ear o' possible cri$inal prosecution.
Section / (ith respect to Section 42c3243 is unconstitutional. :ts va)ueness raises apprehension on the part o' internet users because
o' its obvious chillin) e''ect on the 'reedo$ o' e9pression, especially since the cri$e o' aidin) or abettin) ensnares all the actors in
the cyberspace 'ront in a 'uzzy (ay. What is $ore, as the petitioners point out, 'or$al cri$es such as libel are not punishable unless
consu$$ated.
01
:n the absence o' le)islation tracin) the interaction o' netizens and their level o' responsibility such as in other
countries, Section /, in relation to Section 42c3243 on %ibel, Section 42c323 on Ansolicited Co$$ercial Co$$unications, and Section
42c32!3 on Child "orno)raphy, cannot stand scrutiny.
8ut the cri$e o' aidin) or abettin) the co$$ission o' cybercri$es under Section / should be per$itted to apply to Section 42a3213 on
:lle)al ;ccess, Section 42a32!3 on :lle)al :nterception, Section 42a323 on Cata :nter'erence, Section 42a3243 on Syste$ :nter'erence,
Section 42a32/3 on &isuse o' Cevices, Section 42a3263 on Cyber-sDuattin), Section 42b3213 on Co$puter-related For)ery, Section 42b3
2!3 on Co$puter-related Fraud, Section 42b323 on Co$puter-related :dentity +he't, and Section 42c3213 on Cyberse9. #one o' these
o''enses borders on the e9ercise o' the 'reedo$ o' e9pression.
+he cri$e o' (ill'ully atte$ptin) to co$$it any o' these o''enses is 'or the sa$e reason not ob>ectionable. ; hacker $ay 'or instance
have done all that is necessary to ille)ally access another partyPs co$puter syste$ but the security e$ployed by the syste$Ps la('ul
o(ner could 'rustrate his e''ort. ;nother hacker $ay have )ained access to userna$es and pass(ords o' others but 'ail to use these
because the syste$ supervisor is alerted.
0!
:' Section / that punishes any person (ho (ill'ully atte$pts to co$$it this speci'ic
o''ense is not upheld, the o(ner o' the userna$e and pass(ord could not 'ile a co$plaint a)ainst hi$ 'or atte$pted hackin). 8ut this
is not ri)ht. +he hacker should not be 'reed 'ro$ liability si$ply because o' the vi)ilance o' a la('ul o(ner or his supervisor.
"etitioners o' course clai$ that Section / lacks positive li$its and could cover the innocent.
0
While this $ay be true (ith respect to
cybercri$es that tend to sneak past the area o' 'ree e9pression, any atte$pt to co$$it the other acts speci'ied in Section 42a3213,
Section 42a32!3, Section 42a323, Section 42a3243, Section 42a32/3, Section 42a3263, Section 42b3213, Section 42b32!3, Section 42b323,
and Section 42c3213 as (ell as the actors aidin) and abettin) the co$$ission o' such acts can be identi'ied (ith so$e reasonable
certainty throu)h adroit trackin) o' their (orks. ;bsent concrete proo' o' the sa$e, the innocent (ill o' course be spared.
Section 6 o' the Cybercri$e %a(
Section 6 provides*
Sec. 6. ;ll cri$es de'ined and penalized by the <evised "enal Code, as a$ended, and special la(s, i' co$$itted by, throu)h and
(ith the use o' in'or$ation and co$$unications technolo)ies shall be covered by the relevant provisions o' this ;ct* "rovided, +hat
the penalty to be i$posed shall be one 213 de)ree hi)her than that provided 'or by the <evised "enal Code, as a$ended, and
special la(s, as the case $ay be.
Section 6 $erely $akes co$$ission o' e9istin) cri$es throu)h the internet a Duali'yin) circu$stance. ;s the Solicitor @eneral points
out, there e9ists a substantial distinction bet(een cri$es co$$itted throu)h the use o' in'or$ation and co$$unications technolo)y
and si$ilar cri$es co$$itted usin) other $eans. :n usin) the technolo)y in Duestion, the o''ender o'ten evades identi'ication and is
able to reach 'ar $ore victi$s or cause )reater har$. +he distinction, there'ore, creates a basis 'or hi)her penalties 'or cybercri$es.
Section 0 o' the Cybercri$e %a(
Section 0 provides*
Sec. 0. %iability under 6ther %a(s. H ; prosecution under this ;ct shall be (ithout pre>udice to any liability 'or violation o' any
provision o' the <evised "enal Code, as a$ended, or special la(s.
+he Solicitor @eneral points out that Section 0 $erely e9presses the settled doctrine that a sin)le set o' acts $ay be prosecuted and
penalized si$ultaneously under t(o la(s, a special la( and the <evised "enal Code. When t(o di''erent la(s de'ine t(o cri$es,
prior >eopardy as to one does not bar prosecution o' the other althou)h both o''enses arise 'ro$ the sa$e 'act, i' each cri$e involves
so$e i$portant act (hich is not an essential ele$ent o' the other.
04
With the e9ception o' the cri$es o' online libel and online child
porno)raphy, the Court (ould rather leave the deter$ination o' the correct application o' Section 0 to actual cases.
6nline libel is di''erent. +here should be no Duestion that i' the published $aterial on print, said to be libelous, is a)ain posted online
or vice versa, that identical $aterial cannot be the sub>ect o' t(o separate libels. +he t(o o''enses, one a violation o' ;rticle / o'
the <evised "enal Code and the other a violation o' Section 42c3243 o' <.;. 1510/ involve essentially the sa$e ele$ents and are in
'act one and the sa$e o''ense. :ndeed, the 6S@ itsel' clai$s that online libel under Section 42c3243 is not a ne( cri$e but is one
already punished under ;rticle /. Section 42c3243 $erely establishes the co$puter syste$ as another $eans o'
publication.
0/
Char)in) the o''ender under both la(s (ould be a blatant violation o' the proscription a)ainst double >eopardy.
06
+he sa$e is true (ith child porno)raphy co$$itted online. Section 42c32!3 $erely e9pands the ;C";Ps scope so as to include
identical activities in cyberspace. ;s previously discussed, ;C";Ps de'inition o' child porno)raphy in 'act already covers the use o'
Eelectronic, $echanical, di)ital, optical, $a)netic or any other $eans.E +hus, char)in) the o''ender under both Section 42c32!3 and
;C"; (ould like(ise be tanta$ount to a violation o' the constitutional prohibition a)ainst double >eopardy.
Section J o' the Cybercri$e %a(
Section J provides*
Sec. J. "enalties. H ;ny person 'ound )uilty o' any o' the punishable acts enu$erated in Sections 42a3 and 42b3 o' this ;ct shall be
punished (ith i$prison$ent o' prision $ayor or a 'ine o' at least +(o hundred thousand pesos 2"h"!55,555.553 up to a $a9i$u$
a$ount co$$ensurate to the da$a)e incurred or both.
;ny person 'ound )uilty o' the punishable act under Section 42a32/3 shall be punished (ith i$prison$ent o' prision $ayor or a 'ine o'
not $ore than Five hundred thousand pesos 2"h"/55,555.553 or both.
:' punishable acts in Section 42a3 are co$$itted a)ainst critical in'rastructure, the penalty o' reclusion te$poral or a 'ine o' at least
Five hundred thousand pesos 2"h"/55,555.553 up to $a9i$u$ a$ount co$$ensurate to the da$a)e incurred or both, shall be
i$posed.
;ny person 'ound )uilty o' any o' the punishable acts enu$erated in Section 42c3213 o' this ;ct shall be punished (ith i$prison$ent
o' prision $ayor or a 'ine o' at least +(o hundred thousand pesos 2"h"!55,555.553 but not e9ceedin) 6ne $illion pesos
2"h"1,555,555.553 or both.
;ny person 'ound )uilty o' any o' the punishable acts enu$erated in Section 42c32!3 o' this ;ct shall be punished (ith the penalties
as enu$erated in <epublic ;ct #o. 900/ or the E;nti-Child "orno)raphy ;ct o' !559*E "rovided, +hat the penalty to be i$posed shall
be one 213 de)ree hi)her than that provided 'or in <epublic ;ct #o. 900/, i' co$$itted throu)h a co$puter syste$.
;ny person 'ound )uilty o' any o' the punishable acts enu$erated in Section 42c323 shall be punished (ith i$prison$ent o' arresto
$ayor or a 'ine o' at least Fi'ty thousand pesos 2"h"/5,555.553 but not e9ceedin) +(o hundred 'i'ty thousand pesos
2"h"!/5,555.553 or both.
;ny person 'ound )uilty o' any o' the punishable acts enu$erated in Section / shall be punished (ith i$prison$ent one 213 de)ree
lo(er than that o' the prescribed penalty 'or the o''ense or a 'ine o' at least 6ne hundred thousand pesos 2"h"155,555.553 but not
e9ceedin) Five hundred thousand pesos 2"h"/55,555.553 or both.
Section J provides 'or the penalties 'or the 'ollo(in) cri$es* Sections 42a3 on 6''enses ;)ainst the Con'identiality, :nte)rity and
;vailability o' Co$puter Cata and Syste$s= 42b3 on Co$puter-related 6''enses= 42a32/3 on &isuse o' Cevices= (hen the cri$e
punishable under 42a3 is co$$itted a)ainst critical in'rastructure= 42c3213 on Cyberse9= 42c32!3 on Child "orno)raphy= 42c323 on
Ansolicited Co$$ercial Co$$unications= and Section / on ;idin) or ;bettin), and ;tte$pt in the Co$$ission o' Cybercri$e.
+he $atter o' 'i9in) penalties 'or the co$$ission o' cri$es is as a rule a le)islative prero)ative. ,ere the le)islature prescribed a
$easure o' severe penalties 'or (hat it re)ards as deleterious cybercri$es. +hey appear proportionate to the evil sou)ht to be
punished. +he po(er to deter$ine penalties 'or o''enses is not diluted or i$properly (ielded si$ply because at so$e prior ti$e the
act or o$ission (as but an ele$ent o' another o''ense or $i)ht >ust have been connected (ith another cri$e.
00
Jud)es and
$a)istrates can only interpret and apply the$ and have no authority to $odi'y or revise their ran)e as deter$ined by the le)islative
depart$ent.
+he courts should not encroach on this prero)ative o' the la($akin) body.
0J
Section 1! o' the Cybercri$e %a(
Section 1! provides*
Sec. 1!. <eal-+i$e Collection o' +ra''ic Cata. H %a( en'orce$ent authorities, (ith due cause, shall be authorized to collect or record
by technical or electronic $eans tra''ic data in real-ti$e associated (ith speci'ied co$$unications trans$itted by $eans o' a
co$puter syste$.
+ra''ic data re'er only to the co$$unicationPs ori)in, destination, route, ti$e, date, size, duration, or type o' underlyin) service, but
not content, nor identities.
;ll other data to be collected or seized or disclosed (ill reDuire a court (arrant.
Service providers are reDuired to cooperate and assist la( en'orce$ent authorities in the collection or recordin) o' the above-stated
in'or$ation.
+he court (arrant reDuired under this section shall only be issued or )ranted upon (ritten application and the e9a$ination under
oath or a''ir$ation o' the applicant and the (itnesses he $ay produce and the sho(in)* 213 that there are reasonable )rounds to
believe that any o' the cri$es enu$erated hereinabove has been co$$itted, or is bein) co$$itted, or is about to be co$$itted= 2!3
that there are reasonable )rounds to believe that evidence that (ill be obtained is essential to the conviction o' any person 'or, or to
the solution o', or to the prevention o', any such cri$es= and 23 that there are no other $eans readily available 'or obtainin) such
evidence.
"etitioners assail the )rant to la( en'orce$ent a)encies o' the po(er to collect or record tra''ic data in real ti$e as tendin) to curtail
civil liberties or provide opportunities 'or o''icial abuse. +hey clai$ that data sho(in) (here di)ital $essa)es co$e 'ro$, (hat kind
they are, and (here they are destined need not be incri$inatin) to their senders or recipients be'ore they are to be protected.
"etitioners invoke the ri)ht o' every individual to privacy and to be protected 'ro$ )overn$ent snoopin) into the $essa)es or
in'or$ation that they send to one another.
+he 'irst Duestion is (hether or not Section 1! has a proper )overn$ental purpose since a la( $ay reDuire the disclosure o' $atters
nor$ally considered private but then only upon sho(in) that such reDuire$ent has a rational relation to the purpose o' the la(,
09
that
there is a co$pellin) State interest behind the la(, and that the provision itsel' is narro(ly dra(n.
J5
:n assessin) re)ulations a''ectin)
privacy ri)hts, courts should balance the le)iti$ate concerns o' the State a)ainst constitutional )uarantees.
J1
Andoubtedly, the State has a co$pellin) interest in enactin) the cybercri$e la( 'or there is a need to put order to the tre$endous
activities in cyberspace 'or public )ood.
J!
+o do this, it is (ithin the real$ o' reason that the )overn$ent should be able to $onitor
tra''ic data to enhance its ability to co$bat all sorts o' cybercri$es.
Chapter :? o' the cybercri$e la(, o' (hich the collection or recordin) o' tra''ic data is a part, ai$s to provide la( en'orce$ent
authorities (ith the po(er they need 'or spottin), preventin), and investi)atin) cri$es co$$itted in cyberspace. Cri$e-'i)htin) is a
state business. :ndeed, as Chie' Justice Sereno points out, the 8udapest Convention on Cybercri$es reDuires si)natory countries to
adopt le)islative $easures to e$po(er state authorities to collect or record Etra''ic data, in real ti$e, associated (ith speci'ied
co$$unications.E
J
;nd this is precisely (hat Section 1! does. :t e$po(ers la( en'orce$ent a)encies in this country to collect or
record such data.
8ut is not evidence o' yesterdayPs tra''ic data, like the scene o' the cri$e a'ter it has been co$$itted, adeDuate 'or 'i)htin)
cybercri$es and, there'ore, real-ti$e data is super'luous 'or that purposeI 7vidently, it is not. +hose (ho co$$it the cri$es o'
accessin) a co$puter syste$ (ithout ri)ht,
J4
trans$ittin) viruses,
J/
lasciviously e9hibitin) se9ual or)ans or se9ual activity 'or 'avor or
consideration=
J6
and producin) child porno)raphy
J0
could easily evade detection and prosecution by si$ply $ovin) the physical
location o' their co$puters or laptops 'ro$ day to day. :n this di)ital a)e, the (icked can co$$it cybercri$es 'ro$ virtually any(here*
'ro$ internet ca']s, 'ro$ kindred places that provide 'ree internet services, and 'ro$ unre)istered $obile internet connectors.
Cri$inals usin) cellphones under pre-paid arran)e$ents and (ith unre)istered S:& cards do not have listed addresses and can
neither be located nor identi'ied. +here are $any (ays the cyber cri$inals can Duickly erase their tracks. +hose (ho peddle child
porno)raphy could use relays o' co$puters to $islead la( en'orce$ent authorities re)ardin) their places o' operations. 7vidently, it
is only real-ti$e tra''ic data collection or recordin) and a subseDuent recourse to court-issued search and seizure (arrant that can
succeed in 'erretin) the$ out.
"etitioners o' course point out that the provisions o' Section 1! are too broad and do not provide a$ple sa'e)uards a)ainst crossin)
le)al boundaries and invadin) the peoplePs ri)ht to privacy. +he concern is understandable. :ndeed, the Court reco)nizes in &or'e v.
&utuc
JJ
that certain constitutional )uarantees (ork to)ether to create zones o' privacy (herein )overn$ental po(ers $ay not
intrude, and that there e9ists an independent constitutional ri)ht o' privacy. Such ri)ht to be le't alone has been re)arded as the
be)innin) o' all 'reedo$s.
J9
8ut that ri)ht is not unDuali'ied. :n Whalen v. <oe,
95
the Anited States Supre$e Court classi'ied privacy into t(o cate)ories*
decisional privacy and in'or$ational privacy. Cecisional privacy involves the ri)ht to independence in $akin) certain i$portant
decisions, (hile in'or$ational privacy re'ers to the interest in avoidin) disclosure o' personal $atters. :t is the latter ri)htHthe ri)ht to
in'or$ational privacyHthat those (ho oppose )overn$ent collection or recordin) o' tra''ic data in real-ti$e seek to protect.
:n'or$ational privacy has t(o aspects* the ri)ht not to have private in'or$ation disclosed, and the ri)ht to live 'reely (ithout
surveillance and intrusion.
91
:n deter$inin) (hether or not a $atter is entitled to the ri)ht to privacy, this Court has laid do(n a t(o-
'old test. +he 'irst is a sub>ective test, (here one clai$in) the ri)ht $ust have an actual or le)iti$ate e9pectation o' privacy over a
certain $atter. +he second is an ob>ective test, (here his or her e9pectation o' privacy $ust be one society is prepared to accept as
ob>ectively reasonable.
9!
Since the validity o' the cybercri$e la( is bein) challen)ed, not in relation to its application to a particular person or )roup,
petitionersP challen)e to Section 1! applies to all in'or$ation and co$$unications technolo)y 2:C+3 users, $eanin) the lar)e
se)$ent o' the population (ho use all sorts o' electronic devices to co$$unicate (ith one another. ConseDuently, the e9pectation o'
privacy is to be $easured 'ro$ the )eneral publicPs point o' vie(. Without reasonable e9pectation o' privacy, the ri)ht to it (ould
have no basis in 'act.
;s the Solicitor @eneral points out, an ordinary :C+ user (ho courses his co$$unication throu)h a service provider, $ust o'
necessity disclose to the latter, a third person, the tra''ic data needed 'or connectin) hi$ to the recipient :C+ user. For e9a$ple, an
:C+ user (ho (rites a te9t $essa)e intended 'or another :C+ user $ust 'urnish his service provider (ith his cellphone nu$ber and
the cellphone nu$ber o' his recipient, acco$panyin) the $essa)e sent. :t is this in'or$ation that creates the tra''ic data.
+rans$ittin) co$$unications is akin to puttin) a letter in an envelope properly addressed, sealin) it closed, and sendin) it throu)h
the postal service. +hose (ho post letters have no e9pectations that no one (ill read the in'or$ation appearin) outside the envelope.
Co$puter dataH$essa)es o' all kindsHtravel across the internet in packets and in a (ay that $ay be likened to parcels o' letters or
thin)s that are sent throu)h the posts. When data is sent 'ro$ any one source, the content is broken up into packets and around
each o' these packets is a (rapper or header. +his header contains the tra''ic data* in'or$ation that tells co$puters (here the packet
ori)inated, (hat kind o' data is in the packet 2S&S, voice call, video, internet chat $essa)es, e$ail, online bro(sin) data, etc.3,
(here the packet is )oin), and ho( the packet 'its to)ether (ith other packets.
9
+he di''erence is that tra''ic data sent throu)h the
internet at ti$es across the ocean do not disclose the actual na$es and addresses 2residential or o''ice3 o' the sender and the
recipient, only their coded internet protocol 2:"3 addresses. +he packets travel 'ro$ one co$puter syste$ to another (here their
contents are pieced back to)ether.
Section 1! does not per$it la( en'orce$ent authorities to look into the contents o' the $essa)es and uncover the identities o' the
sender and the recipient.
For e9a$ple, (hen one calls to speak to another throu)h his cellphone, the service providerPs co$$unicationPs syste$ (ill put his
voice $essa)e into packets and send the$ to the other personPs cellphone (here they are re'itted to)ether and heard. +he latterPs
spoken reply is sent to the caller in the sa$e (ay. +o be connected by the service provider, the sender reveals his cellphone nu$ber
to the service provider (hen he puts his call throu)h. ,e also reveals the cellphone nu$ber to the person he calls. +he other (ays o'
co$$unicatin) electronically 'ollo( the sa$e basic pattern.
:n S$ith v. &aryland,
94
cited by the Solicitor @eneral, the Anited States Supre$e Court reasoned that telephone users in the ^05s
$ust realize that they necessarily convey phone nu$bers to the telephone co$pany in order to co$plete a call. +hat Court ruled that
even i' there is an e9pectation that phone nu$bers one dials should re$ain private, such e9pectation is not one that society is
prepared to reco)nize as reasonable.
:n $uch the sa$e (ay, :C+ users $ust kno( that they cannot co$$unicate or e9chan)e data (ith one another over cyberspace
e9cept throu)h so$e service providers to (ho$ they $ust sub$it certain tra''ic data that are needed 'or a success'ul cyberspace
co$$unication. +he conveyance o' this data takes the$ out o' the private sphere, $akin) the e9pectation to privacy in re)ard to
the$ an e9pectation that society is not prepared to reco)nize as reasonable.
+he Court, ho(ever, a)rees (ith Justices Carpio and 8rion that (hen see$in)ly rando$ bits o' tra''ic data are )athered in bulk,
pooled to)ether, and analyzed, they reveal patterns o' activities (hich can then be used to create pro'iles o' the persons under
surveillance. With enou)h tra''ic data, analysts $ay be able to deter$ine a personPs close associations, reli)ious vie(s, political
a''iliations, even se9ual pre'erences. Such in'or$ation is likely beyond (hat the public $ay e9pect to be disclosed, and clearly 'alls
(ithin $atters protected by the ri)ht to privacy. 8ut has the procedure that Section 1! o' the la( provides been dra(n narro(ly
enou)h to protect individual ri)htsI
Section 1! e$po(ers la( en'orce$ent authorities, E(ith due cause,E to collect or record by technical or electronic $eans tra''ic data
in real-ti$e. "etitioners point out that the phrase Edue causeE has no precedent in la( or >urisprudence and that (hether there is due
cause or not is le't to the discretion o' the police. <eplyin) to this, the Solicitor @eneral asserts that Con)ress is not reDuired to
de'ine the $eanin) o' every (ord it uses in dra'tin) the la(.
:ndeed, courts are able to save va)ue provisions o' la( throu)h statutory construction. 8ut the cybercri$e la(, dealin) (ith a novel
situation, 'ails to hint at the $eanin) it intends 'or the phrase Edue cause.E +he Solicitor @eneral su))ests that Edue causeE should
$ean E>ust reason or $otiveE and Eadherence to a la('ul procedure.E 8ut the Court cannot dra( this $eanin) since Section 1! does
not even bother to relate the collection o' data to the probable co$$ission o' a particular cri$e. :t >ust says, E(ith due cause,E thus
>usti'yin) a )eneral )atherin) o' data. :t is akin to the use o' a )eneral search (arrant that the Constitution prohibits.
Cue cause is also not descriptive o' the purpose 'or (hich data collection (ill be used. Will the la( en'orce$ent a)encies use the
tra''ic data to identi'y the perpetrator o' a cyber attackI 6r (ill it be used to build up a case a)ainst an identi'ied suspectI Can the
data be used to prevent cybercri$es 'ro$ happenin)I
+he authority that Section 1! )ives la( en'orce$ent a)encies is too s(eepin) and lacks restraint. While it says that tra''ic data
collection should not disclose identities or content data, such restraint is but an illusion. ;d$ittedly, nothin) can prevent la(
en'orce$ent a)encies holdin) these data in their hands 'ro$ lookin) into the identity o' their sender or receiver and (hat the data
contains. +his (ill unnecessarily e9pose the citizenry to leaked in'or$ation or, (orse, to e9tortion 'ro$ certain bad ele$ents in these
a)encies.
Section 1!, o' course, li$its the collection o' tra''ic data to those Eassociated (ith speci'ied co$$unications.E 8ut this supposed
li$itation is no li$itation at all since, evidently, it is the la( en'orce$ent a)encies that (ould speci'y the tar)et co$$unications. +he
po(er is virtually li$itless, enablin) la( en'orce$ent authorities to en)a)e in E'ishin) e9pedition,E choosin) (hatever speci'ied
co$$unication they (ant. +his evidently threatens the ri)ht o' individuals to privacy.
+he Solicitor @eneral points out that Section 1! needs to authorize collection o' tra''ic data Ein real ti$eE because it is not possible to
)et a court (arrant that (ould authorize the search o' (hat is akin to a E$ovin) vehicle.E 8ut (arrantless search is associated (ith a
police o''icerPs deter$ination o' probable cause that a cri$e has been co$$itted, that there is no opportunity 'or )ettin) a (arrant,
and that unless the search is i$$ediately carried out, the thin) to be searched stands to be re$oved. +hese preconditions are not
provided in Section 1!.
+he Solicitor @eneral is honest enou)h to ad$it that Section 1! provides $ini$al protection to internet users and that the procedure
envisioned by the la( could be better served by providin) 'or $ore robust sa'e)uards. ,is bare assurance that la( en'orce$ent
authorities (ill not abuse the provisions o' Section 1! is o' course not enou)h. +he )rant o' the po(er to track cyberspace
co$$unications in real ti$e and deter$ine their sources and destinations $ust be narro(ly dra(n to preclude abuses.
9/
"etitioners also ask that the Court strike do(n Section 1! 'or bein) violative o' the void-'or-va)ueness doctrine and the overbreadth
doctrine. +hese doctrines ho(ever, have been consistently held by this Court to apply only to 'ree speech cases. 8ut Section 1! on
its o(n neither re)ulates nor punishes any type o' speech. +here'ore, such analysis is unnecessary.
+his Court is $ind'ul that advances in technolo)y allo( the )overn$ent and kindred institutions to $onitor individuals and place
the$ under surveillance in (ays that have previously been i$practical or even i$possible. E;ll the 'orces o' a technolo)ical a)e 9 9 9
operate to narro( the area o' privacy and 'acilitate intrusions into it. :n $odern ter$s, the capacity to $aintain and support this
enclave o' private li'e $arks the di''erence bet(een a de$ocratic and a totalitarian society.E
96
+he Court $ust ensure that la(s
seekin) to take advanta)e o' these technolo)ies be (ritten (ith speci'icity and de'initeness as to ensure respect 'or the ri)hts that
the Constitution )uarantees.
Section 1 o' the Cybercri$e %a(
Section 1 provides*
Sec. 1. "reservation o' Co$puter Cata. H +he inte)rity o' tra''ic data and subscriber in'or$ation relatin) to co$$unication
services provided by a service provider shall be preserved 'or a $ini$u$ period o' si9 263 $onths 'ro$ the date o' the transaction.
Content data shall be si$ilarly preserved 'or si9 263 $onths 'ro$ the date o' receipt o' the order 'ro$ la( en'orce$ent authorities
reDuirin) its preservation.
%a( en'orce$ent authorities $ay order a one-ti$e e9tension 'or another si9 263 $onths* "rovided, +hat once co$puter data
preserved, trans$itted or stored by a service provider is used as evidence in a case, the $ere 'urnishin) to such service provider o'
the trans$ittal docu$ent to the 6''ice o' the "rosecutor shall be dee$ed a noti'ication to preserve the co$puter data until the
ter$ination o' the case.
+he service provider ordered to preserve co$puter data shall keep con'idential the order and its co$pliance.
"etitioners in @.<. !591
90
clai$ that Section 1 constitutes an undue deprivation o' the ri)ht to property. +hey liken the data
preservation order that la( en'orce$ent authorities are to issue as a 'or$ o' )arnish$ent o' personal property in civil 'or'eiture
proceedin)s. Such order prevents internet users 'ro$ accessin) and disposin) o' tra''ic data that essentially belon) to the$.
#o doubt, the contents o' $aterials sent or received throu)h the internet belon) to their authors or recipients and are to be
considered private co$$unications. 8ut it is not clear that a service provider has an obli)ation to inde'initely keep a copy o' the
sa$e as they pass its syste$ 'or the bene'it o' users. 8y virtue o' Section 1, ho(ever, the la( no( reDuires service providers to
keep tra''ic data and subscriber in'or$ation relatin) to co$$unication services 'or at least si9 $onths 'ro$ the date o' the
transaction and those relatin) to content data 'or at least si9 $onths 'ro$ receipt o' the order 'or their preservation.
;ctually, the user ou)ht to have kept a copy o' that data (hen it crossed his co$puter i' he (as so $inded. +he service provider has
never assu$ed responsibility 'or their loss or deletion (hile in its keep.
;t any rate, as the Solicitor @eneral correctly points out, the data that service providers preserve on orders o' la( en'orce$ent
authorities are not $ade inaccessible to users by reason o' the issuance o' such orders. +he process o' preservin) data (ill not
unduly ha$per the nor$al trans$ission or use o' the sa$e.
Section 14 o' the Cybercri$e %a(
Section 14 provides*
Sec. 14. Cisclosure o' Co$puter Cata. H %a( en'orce$ent authorities, upon securin) a court (arrant, shall issue an order reDuirin)
any person or service provider to disclose or sub$it subscriberPs in'or$ation, tra''ic data or relevant data in hisBits possession or
control (ithin seventy-t(o 20!3 hours 'ro$ receipt o' the order in relation to a valid co$plaint o''icially docketed and assi)ned 'or
investi)ation and the disclosure is necessary and relevant 'or the purpose o' investi)ation.
+he process envisioned in Section 14 is bein) likened to the issuance o' a subpoena. "etitionersP ob>ection is that the issuance o'
subpoenas is a >udicial 'unction. 8ut it is (ell-settled that the po(er to issue subpoenas is not e9clusively a >udicial 'unction.
79ecutive a)encies have the po(er to issue subpoena as an ad>unct o' their investi)atory po(ers.
9J
8esides, (hat Section 14 envisions is $erely the en'orce$ent o' a duly issued court (arrant, a 'unction usually lod)ed in the hands
o' la( en'orcers to enable the$ to carry out their e9ecutive 'unctions. +he prescribed procedure 'or disclosure (ould not constitute
an unla('ul search or seizure nor (ould it violate the privacy o' co$$unications and correspondence. Cisclosure can be $ade only
a'ter >udicial intervention.
Section 1/ o' the Cybercri$e %a(
Section 1/ provides*
Sec. 1/. Search, Seizure and 79a$ination o' Co$puter Cata. H Where a search and seizure (arrant is properly issued, the la(
en'orce$ent authorities shall like(ise have the 'ollo(in) po(ers and duties.
Within the ti$e period speci'ied in the (arrant, to conduct interception, as de'ined in this ;ct, and*
2a3 +o secure a co$puter syste$ or a co$puter data stora)e $ediu$=
2b3 +o $ake and retain a copy o' those co$puter data secured=
2c3 +o $aintain the inte)rity o' the relevant stored co$puter data=
2d3 +o conduct 'orensic analysis or e9a$ination o' the co$puter data stora)e $ediu$= and
2e3 +o render inaccessible or re$ove those co$puter data in the accessed co$puter or co$puter and
co$$unications net(ork.
"ursuant thereo', the la( en'orce$ent authorities $ay order any person (ho has kno(led)e about the 'unctionin) o' the co$puter
syste$ and the $easures to protect and preserve the co$puter data therein to provide, as is reasonable, the necessary in'or$ation,
to enable the undertakin) o' the search, seizure and e9a$ination.
%a( en'orce$ent authorities $ay reDuest 'or an e9tension o' ti$e to co$plete the e9a$ination o' the co$puter data stora)e $ediu$
and to $ake a return thereon but in no case 'or a period lon)er than thirty 253 days 'ro$ date o' approval by the court.
"etitioners challen)e Section 1/ on the assu$ption that it (ill supplant established search and seizure procedures. 6n its 'ace,
ho(ever, Section 1/ $erely enu$erates the duties o' la( en'orce$ent authorities that (ould ensure the proper collection,
preservation, and use o' co$puter syste$ or data that have been seized by virtue o' a court (arrant. +he e9ercise o' these duties do
not pose any threat on the ri)hts o' the person 'ro$ (ho$ they (ere taken. Section 1/ does not appear to supersede e9istin)
search and seizure rules but $erely supple$ents the$.
Section 10 o' the Cybercri$e %a(
Section 10 provides*
Sec. 10. Cestruction o' Co$puter Cata. H Apon e9piration o' the periods as provided in Sections 1 and 1/, service providers and
la( en'orce$ent authorities, as the case $ay be, shall i$$ediately and co$pletely destroy the co$puter data sub>ect o' a
preservation and e9a$ination.
Section 10 (ould have the co$puter data, previous sub>ect o' preservation or e9a$ination, destroyed or deleted upon the lapse o'
the prescribed period. +he Solicitor @eneral >usti'ies this as necessary to clear up the service providerPs stora)e syste$s and prevent
overload. :t (ould also ensure that investi)ations are Duickly concluded.
"etitioners clai$ that such destruction o' co$puter data sub>ect o' previous preservation or e9a$ination violates the userPs ri)ht
a)ainst deprivation o' property (ithout due process o' la(. 8ut, as already stated, it is unclear that the user has a de$andable ri)ht
to reDuire the service provider to have that copy o' the data saved inde'initely 'or hi$ in its stora)e syste$. :' he (anted the$
preserved, he should have saved the$ in his co$puter (hen he )enerated the data or received it. ,e could also reDuest the service
provider 'or a copy be'ore it is deleted.
Section 19 o' the Cybercri$e %a(
Section 19 e$po(ers the Cepart$ent o' Justice to restrict or block access to co$puter data*
Sec. 19. <estrictin) or 8lockin) ;ccess to Co$puter Cata.H When a co$puter data is pri$a 'acie 'ound to be in violation o' the
provisions o' this ;ct, the C6J shall issue an order to restrict or block access to such co$puter data.
"etitioners contest Section 19 in that it sti'les 'reedo$ o' e9pression and violates the ri)ht a)ainst unreasonable searches and
seizures. +he Solicitor @eneral concedes that this provision $ay be unconstitutional. 8ut since la(s en>oy a presu$ption o'
constitutionality, the Court $ust satis'y itsel' that Section 19 indeed violates the 'reedo$ and ri)ht $entioned.
Co$puter data
99
$ay re'er to entire pro)ra$s or lines o' code, includin) $al(are, as (ell as 'iles that contain te9ts, i$a)es, audio, or
video recordin)s. Without havin) to )o into a len)thy discussion o' property ri)hts in the di)ital space, it is indisputable that co$puter
data, produced or created by their (riters or authors $ay constitute personal property. ConseDuently, they are protected 'ro$
unreasonable searches and seizures, (hether (hile stored in their personal co$puters or in the service providerPs syste$s.
Section !, ;rticle ::: o' the 19J0 Constitution provides that the ri)ht to be secure in onePs papers and e''ects a)ainst unreasonable
searches and seizures o' (hatever nature and 'or any purpose shall be inviolable. Further, it states that no search (arrant shall
issue e9cept upon probable cause to be deter$ined personally by the >ud)e. ,ere, the @overn$ent, in e''ect, seizes and places the
co$puter data under its control and disposition (ithout a (arrant. +he Cepart$ent o' Justice order cannot substitute 'or >udicial
search (arrant.
+he content o' the co$puter data can also constitute speech. :n such a case, Section 19 operates as a restriction on the 'reedo$ o'
e9pression over cyberspace. Certainly not all 'or$s o' speech are protected. %e)islature $ay, (ithin constitutional bounds, declare
certain kinds o' e9pression as ille)al. 8ut 'or an e9ecutive o''icer to seize content alle)ed to be unprotected (ithout any >udicial
(arrant, it is not enou)h 'or hi$ to be o' the opinion that such content violates so$e la(, 'or to do so (ould $ake hi$ >ud)e, >ury,
and e9ecutioner all rolled into one.
155
#ot only does Section 19 preclude any >udicial intervention, but it also disre)ards >urisprudential )uidelines established to deter$ine
the validity o' restrictions on speech. <estraints on 'ree speech are )enerally evaluated on one o' or a co$bination o' three tests* the
dan)erous tendency doctrine, the balancin) o' interest test, and the clear and present dan)er rule.
151
Section 19, ho(ever, $erely
reDuires that the data to be blocked be 'ound pri$a 'acie in violation o' any provision o' the cybercri$e la(. +akin) Section 6 into
consideration, this can actually be $ade to apply in relation to any penal provision. :t does not take into consideration any o' the
three tests $entioned above.
+he Court is there'ore co$pelled to strike do(n Section 19 'or bein) violative o' the constitutional )uarantees to 'reedo$ o'
e9pression and a)ainst unreasonable searches and seizures.
Section !5 o' the Cybercri$e %a(
Section !5 provides*
Sec. !5. #onco$pliance. H Failure to co$ply (ith the provisions o' Chapter :? hereo' speci'ically the orders 'ro$ la( en'orce$ent
authorities shall be punished as a violation o' "residential Cecree #o. 1J!9 (ith i$prison$ent o' prision correctional in its $a9i$u$
period or a 'ine o' 6ne hundred thousand pesos 2"hp155,555.553 or both, 'or each and every nonco$pliance (ith an order issued by
la( en'orce$ent authorities.
"etitioners challen)e Section !5, alle)in) that it is a bill o' attainder. +he ar)u$ent is that the $ere 'ailure to co$ply constitutes a
le)islative 'indin) o' )uilt, (ithout re)ard to situations (here non-co$pliance (ould be reasonable or valid.
8ut since the non-co$pliance (ould be punished as a violation o' "residential Cecree 2".C.3 1J!9,
15!
Section !5 necessarily
incorporates ele$ents o' the o''ense (hich are de'ined therein. :' Con)ress had intended 'or Section !5 to constitute an o''ense in
and o' itsel', it (ould not have had to $ake re'erence to any other statue or provision.
".C. 1J!9 states*
Section 1. +he penalty o' prision correccional in its $a9i$u$ period, or a 'ine ran)in) 'ro$ 1,555 to 6,555 pesos, or both, shall be
i$posed upon any person (ho kno(in)ly or (ill'ully obstructs, i$pedes, 'rustrates or delays the apprehension o' suspects and the
investi)ation and prosecution o' cri$inal cases by co$$ittin) any o' the 'ollo(in) acts*
9 9 9.
+hus, the act o' non-co$pliance, 'or it to be punishable, $ust still be done Ekno(in)ly or (ill'ully.E +here $ust still be a >udicial
deter$ination o' )uilt, durin) (hich, as the Solicitor @eneral assu$es, de'ense and >usti'ications 'or non-co$pliance $ay be raised.
+hus, Section !5 is valid inso'ar as it applies to the provisions o' Chapter :? (hich are not struck do(n by the Court.
Sections !4 and !62a3 o' the Cybercri$e %a(
Sections !4 and !62a3 provide*
Sec. !4. Cybercri$e :nvesti)ation and Coordinatin) Center.Q +here is hereby created, (ithin thirty 253 days 'ro$ the e''ectivity o'
this ;ct, an inter-a)ency body to be kno(n as the Cybercri$e :nvesti)ation and Coordinatin) Center 2C:CC3, under the
ad$inistrative supervision o' the 6''ice o' the "resident, 'or policy coordination a$on) concerned a)encies and 'or the 'or$ulation
and en'orce$ent o' the national cybersecurity plan.
Sec. !6. "o(ers and Functions.Q +he C:CC shall have the 'ollo(in) po(ers and 'unctions*
2a3 +o 'or$ulate a national cybersecurity plan and e9tend i$$ediate assistance o' real ti$e co$$ission o' cybercri$e o''enses
throu)h a co$puter e$er)ency response tea$ 2C7<+3= 9 9 9.
"etitioners $ainly contend that Con)ress invalidly dele)ated its po(er (hen it )ave the Cybercri$e :nvesti)ation and Coordinatin)
Center 2C:CC3 the po(er to 'or$ulate a national cybersecurity plan (ithout any su''icient standards or para$eters 'or it to 'ollo(.
:n order to deter$ine (hether there is undue dele)ation o' le)islative po(er, the Court has adopted t(o tests* the co$pleteness test
and the su''icient standard test. Ander the 'irst test, the la( $ust be co$plete in all its ter$s and conditions (hen it leaves the
le)islature such that (hen it reaches the dele)ate, the only thin) he (ill have to do is to en'orce it.a%%phi +he second test $andates
adeDuate )uidelines or li$itations in the la( to deter$ine the boundaries o' the dele)atePs authority and prevent the dele)ation 'ro$
runnin) riot.
15
,ere, the cybercri$e la( is co$plete in itsel' (hen it directed the C:CC to 'or$ulate and i$ple$ent a national cybersecurity plan.
;lso, contrary to the position o' the petitioners, the la( )ave su''icient standards 'or the C:CC to 'ollo( (hen it provided a de'inition
o' cybersecurity.
Cybersecurity re'ers to the collection o' tools, policies, risk $ana)e$ent approaches, actions, trainin), best practices, assurance and
technolo)ies that can be used to protect cyber environ$ent and or)anization and userPs assets.
154
+his de'inition serves as the
para$eters (ithin (hich C:CC should (ork in 'or$ulatin) the cybersecurity plan.
Further, the 'or$ulation o' the cybersecurity plan is consistent (ith the policy o' the la( to Eprevent and co$bat such FcyberG o''enses
by 'acilitatin) their detection, investi)ation, and prosecution at both the do$estic and international levels, and by providin)
arran)e$ents 'or 'ast and reliable international cooperation.E
15/
+his policy is clearly adopted in the interest o' la( and order, (hich
has been considered as su''icient standard.
156
,ence, Sections !4 and !62a3 are like(ise valid.
W,7<7F6<7, the Court C7C%;<7S*
1. ?6:C 'or bein) A#C6#S+:+A+:6#;%*
a. Section 42c323 o' <epublic ;ct 1510/ that penalizes postin) o' unsolicited co$$ercial co$$unications=
b. Section 1! that authorizes the collection or recordin) o' tra''ic data in real-ti$e= and
c. Section 19 o' the sa$e ;ct that authorizes the Cepart$ent o' Justice to restrict or block access to
suspected Co$puter Cata.
!. ?;%:C and C6#S+:+A+:6#;%*
a. Section 42a3213 that penalizes accessin) a co$puter syste$ (ithout ri)ht=
b. Section 42a323 that penalizes data inter'erence, includin) trans$ission o' viruses=
c. Section 42a3263 that penalizes cyber-sDuattin) or acDuirin) do$ain na$e over the internet in bad 'aith to
the pre>udice o' others=
d. Section 42b323 that penalizes identity the't or the use or $isuse o' identi'yin) in'or$ation belon)in) to
another=
e. Section 42c3213 that penalizes cyberse9 or the lascivious e9hibition o' se9ual or)ans or se9ual activity 'or
'avor or consideration=
'. Section 42c32!3 that penalizes the production o' child porno)raphy=
). Section 6 that i$poses penalties one de)ree hi)her (hen cri$es de'ined under the <evised "enal Code
are co$$itted (ith the use o' in'or$ation and co$$unications technolo)ies=
h. Section J that prescribes the penalties 'or cybercri$es=
i. Section 1 that per$its la( en'orce$ent authorities to reDuire service providers to preserve tra''ic data and
subscriber in'or$ation as (ell as speci'ied content data 'or si9 $onths=
>. Section 14 that authorizes the disclosure o' co$puter data under a court-issued (arrant=
k. Section 1/ that authorizes the search, seizure, and e9a$ination o' co$puter data under a court-issued
(arrant=
l. Section 10 that authorizes the destruction o' previously preserved co$puter data a'ter the e9piration o' the
prescribed holdin) periods=
$. Section !5 that penalizes obstruction o' >ustice in relation to cybercri$e investi)ations=
n. Section !4 that establishes a Cybercri$e :nvesti)ation and Coordinatin) Center 2C:CC3=
o. Section !62a3 that de'ines the C:CCPs "o(ers and Functions= and
p. ;rticles /, /4, 61, and 6! o' the <evised "enal Code that penalizes libel.
Further, the Court C7C%;<7S*
1. Section 42c3243 that penalizes online libel as ?;%:C and C6#S+:+A+:6#;% (ith respect to the ori)inal author o'
the post= but ?6:C and A#C6#S+:+A+:6#;% (ith respect to others (ho si$ply receive the post and react to it= and
!. Section / that penalizes aidin) or abettin) and atte$pt in the co$$ission o' cybercri$es as ?; % : C and
C6#S+:+A+:6#;% only in relation to Section 42a3213 on :lle)al ;ccess, Section 42a32!3 on :lle)al :nterception,
Section 42a323 on Cata :nter'erence, Section 42a3243 on Syste$
:nter'erence, Section 42a32/3 on &isuse o' Cevices, Section 42a3263 on Cyber-sDuattin), Section 42b3213 on Co$puter-related For)ery,
Section 42b32!3 on Co$puter-related Fraud, Section 42b323 on Co$puter-related :dentity +he't, and Section 42c3213 on Cyberse9= but
?6:C and A#C6#S+:+A+:6#;% (ith respect to Sections 42c32!3 on Child "orno)raphy, 42c323 on Ansolicited Co$$ercial
Co$$unications, and 42c3243 on online %ibel.Nwphi
%astly, the Court <7S6%?7S to %7;?7 +,7 C7+7<&:#;+:6# o' the correct application o' Section 0 that authorizes prosecution o'
the o''ender under both the <evised "enal Code and <epublic ;ct 1510/ to actual cases, W:+, +,7 7SC7"+:6# o' the cri$es o'*
1. 6nline libel as to (hich, char)in) the o''ender under both Section 42c3243 o' <epublic ;ct 1510/ and ;rticle / o'
the <evised "enal Code constitutes a violation o' the proscription a)ainst double >eopardy= as (ell as
!. Child porno)raphy co$$itted online as to (hich, char)in) the o''ender under both Section 42c32!3 o' <epublic ;ct
1510/ and <epublic ;ct 900/ or the ;nti-Child "orno)raphy ;ct o' !559 also constitutes a violation o' the sa$e
proscription, and, in respect to these, is ?6:C and A#C6#S+:+A+:6#;%.
S6 6<C7<7C.
ROBERTO A. ABA3
;ssociate Justice
W7 C6#CA<*
See Concurrin) M Cissentin) 6pinion
MAR$A LOUR3ES 6. A. SERENO
Chie' Justice
See Concurrin) M Cissentin) 6pinion
ANTON$O T. CAR6$O
;ssociate Justice
2no part due to prior case3
6RESB$TERO J. %ELASCO, JR.K
;ssociate Justice
TERES$TA J. LEONAR3O-3E CASTRO
;ssociate Justice
See Separate Concurrin) 6pinion
ARTURO 3. BR$ON
;ssociate Justice
3$OS3A3O M. 6ERALTA
;ssociate Justice
LUCAS 6. BERSAM$N
;ssociate Justice
MAR$ANO C. 3EL CAST$LLO
;ssociate Justice
MART$N S. %$LLARAMA, JR.
;ssociate Justice
JOSE 6ORTUGAL 6ERE1
;ssociate Justice
: >oin Justice 8rion in all his positions
JOSE CATRAL MEN3O1A
;ssociate Justice
B$EN%EN$3O L. RE#ES
;ssociate Justice
#o "art
ESTELA M. 6ERLAS-BERNABEK
;ssociate Justice
See separate dissentin) and concurrin) opinion
MAR%$C MAR$O %$CTOR ". LEONEN
;ssociate Justice
C 7 < + : F : C ; + : 6 #
"ursuant to Section 1, ;rticle ?::: o' the Constitution, it is hereby certi'ied that the conclusions in the above Cecision had been
reached in consultation be'ore the case (as assi)ned to the (riter o' the opinion o' the Court.
MAR$A LOUR3ES 6.A. SERENO
Chie' Justice
"oo+no+e(
K#o part.
1
+he AS Supre$e Court 'irst su))ested the standard by i$plication in 'ootnote 4 o' Anited States v. Carolene
"roducts 254 A.S. 144, 1/! n.4 219J3. See Fatal in +heory and Strict in Fact* ;n 7$pirical ;nalysis o' Strict
Scrutiny in the Federal Courts. Winkler, ;. AC%; School o' %a(, "ublic %a( M %e)al +heory <esearch "aper Series,
<esearch "aper #o. 56-14, http*BBssrn.co$Babstract_J9065 2last accessed ;pril 15, !513.
!
Serrano v. @allant &ariti$e Services, :nc., @.<. #o. 160614, &arch !4, !559, /J! SC<; !/4, !0J.
White %i)ht Corporation v. City o' &anila, @.<. #o. 1!!J46, January !5, !559, /06 SC<; 416, 40.
4
;ll /5 states o' the Anited States have passed individual state la(s cri$inalizin) hackin) or unauthorized access,
http*BB(((.ncsl.or)Bissues-researchBteleco$Bco$puter-hackin)-and-unauthorized-access-la(s.asp9 2last accessed
&ay 16, !513. +he Anited States Con)ress has also passed the Co$puter Fraud and ;buse ;ct 1J A.S.C. U 155
that penalizes, a$on) others, hackin). +he 8udapest Convention on Cybercri$e considers hackin) as an o''ense
a)ainst the con'identiality, inte)rity and availability o' co$puter data and syste$s and !9 countries have already
rati'ied or acceded, http*BBconventions.coe.intB+reatyBCo$$unBChercheSi).aspI#+_1J/MC&_MCF_MC%_7#@ 2last
accessed &ay 16, !513.
/
7thical ,ackin). "al$er, C. :8& Syste$s Journal, ?ol. 45, #o. , !551, p. 005,
http*BBpd'.te9t'iles.co$BsecurityBpal$er.pd' 2last accessed ;pril 15, !513.
6
:d. at 004.
0
Southern ,e$isphere 7n)a)e$ent #et(ork, :nc. v. ;nti-+erroris$ Council, @.<. #os. 10J//!, 10J//4, 10J/J1,
10JJ95, 1091/0 M 109461, 6ctober /, !515, 6! SC<; 146, 1J/.
J
+he intentional destruction o' property is popularly re'erred to as vandalis$. :t includes behavior such as breakin)
(indo(s, slashin) tires, spray paintin) a (all (ith )ra''iti, and destroyin) a co$puter syste$ throu)h the use o' a
co$puter virus, http*BBle)al-dictionary.the'reedictionary.co$B?andalis$ 2last accessed ;u)ust 1!, !513.
9
Southern ,e$isphere 7n)a)e$ent #et(ork, :nc. v. ;nti-+erroris$ Council, supra note 0, at 1J6= 7strada v.
Sandi)anbayan, 4!1 "hil. !95, /4 2!5513.
15
:d.
11
:d., citin) the 6pinion o' Justice ?icente ?. &endoza in 7strada v. Sandi)anbayan.
1!
19J0 C6#S+:+A+:6#, ;rticle :::, Section 1.
1
"ollo v. Constantino-Cavid, @.<. #o. 1J1JJ1, 6ctober 1J, !511, 6/9 SC<; 1J9, !54-!5/.
14
15 "hil. 41/ 2196J3
1/
// "hil. 6J0, 014-01/ 2!5563.
16
Supra note 1!, ;rticle ::, Section !.
10
Supra note 1!, ;rticle :::, Section .
1J
:n the &atter o' the "etition 'or :ssuance o' Writ o' ,abeas Corpus o' Sabio v. Senator @ordon, supra note 1/.
19
Section 2)3 o' <epublic ;ct 1510 or the Cata "rivacy ;ct o' !51! de'ines personal in'or$ation as Eany in'or$ation
(hether recorded in a $aterial 'or$ or not, 'ro$ (hich the identity o' an individual is apparent or can be reasonably
and directly ascertained by the entity holdin) the in'or$ation, or (hen put to)ether (ith other in'or$ation (ould
directly and certainly identi'y an individual.E
!5
"eople v. Ay, @.<. #o. 104665, &ay 5, !511, 649 SC<; !6.
!1
Supra note 10 2@.<. #o. !5/9 F@uin)onaG= @.<. #o. !5/1J F":F;G3.
!!
&erria$-Webster, http*BB(((.$erria$-(ebster.co$BdictionaryB'avor 2last accessed &ay 5, !513.
!
8ica$eral Con'erence Co$$ittee, pp. /-6.
!4
:d.
!/
6''ice o' the Solicitor @eneral, C6&&7#+, p. 01.
!6
<7"A8%:C ;C+ 9!5J, Section 42e3.
!0
:d., Section 2c3.
!J
@.<. #o. 1915J5, #ove$ber !1, !511, 665 SC<; 40/.
!9
<7?:S7C "7#;% C6C7, ;rticle !51 2!32b32!3, as a$ended by "residential Cecree 969.
5
"ita v. Court o' ;ppeals, !/J-; "hil. 14 219J93.
1
<7"A8%:C ;C+ 900/ entitled ;# ;C+ C7F:#:#@ +,7 C<:&7 6F C,:%C "6<#6@<;",-, "<7SC<:8:#@
"7#;%+:7S +,7<7F6< ;#C F6< 6+,7< "A<"6S7S.
!
Sto. +o$as v. Salac, @.<. #o. 1/!64!, #ove$ber 1, !51!, 6J/ SC<; !4/, citin) "eople v. ?entura, 114 "hil. 16!,
160 2196!3.
'I'D,
<;77'R'(', JR.,
P?R?R,
(?ND@R',
"?R?N@,
R??", and
P?R7'"!I?RN'I?, JJ.
ENGELBERT ANTHONY 5. 7NITE Promu#gated:
AN5 THE CIVIL SERVICE
COMMISSION,
Res&ondents.
@*tober 18, ./11
x- - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - -x
5ECISION
VILLARAMA, JR., J.9
+,is *ase invo#ves a sear*, o1 o11i*e *om&uter assigned to a government
em&#o6ee 2,o 2as *,arged administrative#6 and eventua##6 dismissed 1rom t,e
servi*e. +,e em&#o6eeAs &ersona# 1i#es stored in t,e *om&uter 2ere used b6 t,e
government em&#o6er as eviden*e o1 mis*ondu*t.
Ie1ore us is a &etition 1or revie2 on *ertiorari under Ru#e 05 2,i*, see3s to
reverse and set aside t,e De*ision
A:B
dated@*tober 11, .//- and
Reso#ution
A6B
dated =ebruar6 .9, .//8 o1 t,e %ourt o1 '&&ea#s 8%'9. +,e %'
dismissed t,e &etition 1or *ertiorari 8%'!G.R. "P No. 98..09 1i#ed b6 &etitioner
Iri**io KRi*36L '. Po##o to nu##i16 t,e &ro*eedings *ondu*ted b6 t,e %ivi# "ervi*e
%ommission 8%"%9 2,i*, 1ound ,im gui#t6 o1 dis,onest6, grave mis*ondu*t,
*ondu*t &re)udi*ia# to t,e best interest o1 t,e servi*e, and vio#ation o1 Re&ub#i* '*t
8R.'.9 No. 6-13 and &ena#i$ed ,im 2it, dismissa#.
+,e 1a*tua# ante*edents:
Petitioner is a 1ormer "u&ervising Personne# "&e*ia#ist o1 t,e %"% Regiona#
@11i*e No. ;< and a#so t,e @11i*er!in!%,arge o1 t,e Pub#i* 'ssistan*e and 7iaison
Division 8P'7D9 under t,e K*amamayan *una 1indi *amaya %aL &rogram o1
t,e %"%.
@n Januar6 3, .//- at around .:3/ &.m., an unsigned #etter!*om&#aint
addressed to res&ondent %"% %,air&erson Narina %onstantino!David 2,i*, 2as
mar3ed K%on1identia#L and sent t,roug, a *ourier servi*e 87I%9 1rom a *ertain
K'#an "an Pas*ua#L o1 Iagong "i#ang, %a#oo*an %it6, 2as re*eived b6 t,e
;ntegrated Re*ords (anagement @11i*e 8;R(@9 at t,e %"% %entra# @11i*e.
=o##o2ing o11i*e &ra*ti*e in 2,i*, do*uments mar3ed K%on1identia#L are #e1t
uno&ened and instead sent to t,e addressee, t,e a1oresaid #etter 2as given dire*t#6
to %,air&erson David.
+,e #etter!*om&#aint reads:
+,e %,air2oman
%ivi# "ervi*e %ommission
Iatasan :i##s, Que$on %it6
Dear (adam %,air2oman,
Ie#ated (err6 %,ristmas and 'dvan*e :a&&6 Ne2 earP
's a *on*erned *iti$en o1 m6 be#oved *ountr6, ; 2ou#d #i3e to as3 1rom 6ou
&ersona##6 i1 it is )ust a#rig,t 1or an em&#o6ee o1 6our agen*6 to be a #a26er o1 an
a**used govAt em&#o6ee ,aving a &ending *ase in t,e *s*. ; ,onest#6 t,in3 t,is is
a vio#ation o1 #a2 and un1air to ot,ers and 6our o11i*e.
; ,ave 3no2n t,at a &erson ,ave been #a26ered b6 one o1 6our attorn6 in
t,e region 0 o11i*e. :e is t,e *,ie1 o1 t,e (amama6an muna ,indi mama6a na
division. :e ,ave been ,e#&ing man6 2,o ,ave &ending *ases in t,e %s*. +,e
)usti*e in our govt s6stem 2i## not be served i1 t,is 2i## *ontinue. P#ease
investigate t,is anoma#6 be*ause our &er*e&tion o1 6our *#ean and good o11i*e is
being tainted.
%on*erned Govt em&#o6ee
A1B
%,air&erson David immediate#6 1ormed a team o1 1our &ersonne# 2it,
ba*3ground in in1ormation te*,no#og6 8;+9, and issued a memo dire*ting t,em to
*ondu*t an investigation and s&e*i1i*a##6 Kto ba*3 u& a## t,e 1i#es in t,e *om&uters
1ound in t,e (amama6an (una 8P'7D9 and 7ega# divisions.L
A?B
'1ter some
brie1ing, t,e team &ro*eeded at on*e to t,e %"%!R@;< o11i*e at Pana6
'venue,Que$on %it6. B&on t,eir arriva# t,ereat around 5:3/ &.m., t,e team
in1ormed t,e o11i*ia#s o1 t,e %"%!R@;<, res&ondents Dire*tor ;< 76dia %asti##o
8Dire*tor %asti##o9 and Dire*tor ;;; ?nge#bert Bnite 8Dire*tor Bnite9 o1
%,air&erson DavidAs dire*tive.
+,e ba*3ing!u& o1 all 1i#es in t,e ,ard dis3 o1 *om&uters at t,e P'7D and
7ega# "ervi*es Division 87"D9 2as 2itnessed b6 severa# em&#o6ees, toget,er 2it,
Dire*tors %asti##o and Bnite 2,o *#ose#6 monitored said a*tivit6. 't around 6://
&.m., Dire*tor Bnite sent teGt messages to &etitioner and t,e ,ead o1 7"D, 2,o
2ere bot, out o1 t,e o11i*e at t,e time, in1orming t,em o1 t,e ongoing *o&6ing o1
*om&uter 1i#es in t,eir divisions u&on orders o1 t,e %"% %,air. +,e teGt messages
re*eived b6 &etitioner read:
+ud p.m. -his is ;tty. @nite /0I" Co people are going over the 9Cs o 9;L:
and LS: per instru!tion o the Chairman. I you !an make it here now it would be
better.
;ll 9Cs O 9;L: and LS: are being ba!ked up per memo o the !hair.
CO I- people arrived 'ust now or this purpose. &e were not also inormed
about this.
&e !anDt do anything about E it E itDs a dire!tive rom !hair.
*emo o the !hair was reerring to an anonymous !omplaintF ill send a !opy
o the memo via mms
A;B
Petitioner re&#ied a#so t,ru teGt message t,at ,e 2as #eaving t,e matter to
Dire*tor Bnite and t,at ,e 2i## )ust get a #a26er. 'not,er teGt message re*eived b6
&etitioner 1rom P'7D sta11 a#so re&orted t,e &resen*e o1 t,e team 1rom %"% main
o11i*e: KSir may mga taga C.O. daw sa kuarto natin.L
A>B
't around 1/:// &.m. o1
t,e same da6, t,e investigating team 1inis,ed t,eir tas3. +,e neGt da6, a## t,e
*om&uters in t,e P'7D 2ere sea#ed and se*ured 1or t,e &ur&ose o1 &reserving a##
t,e 1i#es stored t,erein. "evera# dis3ettes *ontaining t,e ba*3!u& 1i#es sour*ed 1rom
t,e ,ard dis3 o1 P'7D and 7"D *om&uters 2ere turned over to %,air&erson David.
+,e *ontents o1 t,e dis3ettes 2ere eGamined b6 t,e %"%As @11i*e 1or 7ega# '11airs
8@7'9. ;t 2as 1ound t,at most o1 t,e 1i#es in t,e 1- dis3ettes *ontaining 1i#es
*o&ied 1rom t,e *om&uter assigned to and being used b6 t,e &etitioner, numbering
about 0/ to 0. do*uments, 2ere dra1t &#eadings or #etters
A<B
in *onne*tion 2it,
administrative *ases in t,e %"% and ot,er tribuna#s. @n t,e basis o1 t,is 1inding,
%,air&erson David issued t,e ",o2!%ause @rder
A=B
dated Januar6 11, .//-,
reFuiring t,e &etitioner, 2,o ,ad gone on eGtended #eave, to submit ,is eG&#anation
or *ounter!a11idavit 2it,in 1ive da6s 1rom noti*e.
?va#uating t,e sub)e*t do*uments obtained 1rom &etitionerAs &ersona# 1i#es,
%,air&erson David made t,e 1o##o2ing observations:
(ost o1 t,e 1oregoing 1i#es are dra1ts o1 #ega# &#eadings or do*uments t,at
are re#ated to or *onne*ted 2it, administrative *ases t,at ma6 broad#6 be #um&ed
as &ending eit,er in t,e %"%R@ No. ;<, t,e %"%!N%R, t,e %"%!%entra# @11i*e
or ot,er tribuna#s. ;t is a#so o1 note t,at most o1 t,ese dra1t &#eadings are 1or and
on be,a#ves o1 &arties, 2,o are 1a*ing *,arges as res&ondents in administrative
*ases. +,is gives rise to t,e in1eren*e t,at t,e one 2,o &re&ared t,em 2as
3no2ing#6, de#iberate#6 and 2i##1u##6 aiding and advan*ing interests adverse and
inimi*a# to t,e interest o1 t,e %"% as t,e *entra# &ersonne# agen*6 o1 t,e
government tas3ed to dis*i&#ine mis1easan*e and ma#1easan*e in t,e government
servi*e. +,e number o1 &#eadings so &re&ared 1urt,er demonstrates t,at su*,
&erson is not mere#6 engaged in an iso#ated &ra*ti*e but &ursues it 2it, seeming
regu#arit6. ;t 2ou#d a#so be t,e ,eig,t o1 naivete or *redu#it6, and *ertain#6
against *ommon ,uman eG&erien*e, to be#ieve t,at t,e &erson *on*erned ,ad
engaged in t,is *ustomar6 &ra*ti*e 2it,out an6 *onsideration, and in 1a*t, one o1
t,e retrieved 1i#es 8item 13 above9 a&&ears to insinuate t,e *o##e*tion o1 1ees. +,at
t,ese dra1t &#eadings 2ere obtained 1rom t,e *om&uter assigned to Po##o
invariab#6 raises t,e &resum&tion t,at ,e 2as t,e one res&onsib#e or ,ad a ,and in
t,eir dra1ting or &re&aration sin*e t,e *om&uter o1 origin 2as 2it,in ,is dire*t
*ontro# and dis&osition.
ACB
Petitioner 1i#ed ,is %omment, den6ing t,at ,e is t,e &erson re1erred to in t,e
anon6mous #etter!*om&#aint 2,i*, ,ad no atta*,ments to it, be*ause ,e is not a
#a26er and neit,er is ,e K#a26eringL 1or &eo&#e 2it, *ases in t,e %"%. :e a**used
%"% o11i*ia#s o1 *ondu*ting a K1is,ing eG&editionL 2,en t,e6 un#a21u##6 *o&ied
and &rinted &ersona# 1i#es in ,is *om&uter, and subseFuent#6 as3ing ,im to submit
,is *omment 2,i*, vio#ated ,is rig,t against se#1!in*rimination. :e asserted t,at
,e ,ad &rotested t,e un#a21u# ta3ing o1 ,is *om&uter done 2,i#e ,e 2as on #eave,
*iting t,e #etter dated Januar6 8, .//- in 2,i*, ,e in1ormed Dire*tor %asti##o t,at
t,e 1i#es in ,is *om&uter 2ere ,is &ersona# 1i#es and t,ose o1 ,is sister, re#atives,
1riends and some asso*iates and t,at ,e is not aut,ori$ing t,eir sea#ing, *o&6ing,
du&#i*ating and &rinting as t,ese 2ou#d vio#ate ,is *onstitutiona# rig,t to &riva*6
and &rote*tion against se#1!in*rimination and 2arrant#ess sear*, and sei$ure. :e
&ointed out t,at t,oug, government &ro&ert6, t,e tem&orar6 use and o2ners,i& o1
t,e *om&uter issued under a (emorandum o1 Re*ei&t 8(R9 is *eded to t,e
em&#o6ee 2,o ma6 eGer*ise a## attributes o1 o2ners,i&, in*#uding its use 1or
&ersona# &ur&oses. 's to t,e anon6mous #etter, &etitioner argued t,at it is not
a*tionab#e as it 1ai#ed to *om 2it, t,e reFuirements o1 a 1orma# *om&#aint under
t,e Bni1orm Ru#es on 'dministrative %ases in t,e %ivi# "ervi*e 8BR'%%9. ;n
vie2 o1 t,e i##ega# sear*,, t,e 1i#esEdo*uments *o&ied 1rom ,is *om&uter 2it,out
,is *onsent is t,us inadmissib#e as eviden*e, being K1ruits o1 a &oisonous tree.L
A:2B
@n =ebruar6 .6, .//-, t,e %"% issued Reso#ution No.
/-/38.
A::B
1inding prima a!ie *ase against t,e &etitioner and *,arging ,im 2it,
Dis,onest6, Grave (is*ondu*t, %ondu*t Pre)udi*ia# to t,e Iest ;nterest o1 t,e
"ervi*e and <io#ation o1 R.'. No. 6-13 8Code o Condu!t and ?thi!al Standards
or 9ubli! Oi!ials and ?mployees9. Petitioner 2as dire*ted to submit ,is ans2er
under oat, 2it,in 1ive da6s 1rom noti*e and indi*ate 2,et,er ,e e#e*ts a 1orma#
investigation. "in*e t,e *,arges 1a## under "e*tion 19 o1 t,e BR'%%, &etitioner
2as #i3e2ise &#a*ed under 9/ da6s &reventive sus&ension e11e*tive immediate#6
u&on re*ei&t o1 t,e reso#ution. Petitioner re*eived a *o&6 o1 Reso#ution No. /-/38.
on (ar*, 1, .//-.
Petitioner 1i#ed an @mnibus (otion 8=or Re*onsideration, to Dismiss andEor
to De1er9 assai#ing t,e 1orma# *,arge as 2it,out basis ,aving &ro*eeded 1rom an
i##ega# sear*, 2,i*, is be6ond t,e aut,orit6 o1 t,e %"% %,airman, su*, &o2er
&ertaining so#e#6 to t,e *ourt. Petitioner reiterated t,at ,e never aided an6 &eo&#e
2it, &ending *ases at t,e %"% and a##eged t,at t,ose 1i#es 1ound in ,is *om&uter
2ere &re&ared not b6 ,im but b6 *ertain &ersons 2,om ,e &ermitted, at one time or
anot,er, to ma3e use o1 ,is *om&uter out o1 *#ose asso*iation or 1riends,i&.
'tta*,ed to t,e motion 2ere t,e a11idavit o1 'tt6. Pon*iano R. "o#osa 2,o
entrusted ,is o2n 1i#es to be 3e&t at &etitionerAs %PB and 'tt6. ?ri* N. ?stre##ado,
t,e #atter being 'tt6. "o#osaAs *#ient 2,o attested t,at &etitioner ,ad not,ing to do
2it, t,e &#eadings or bi## 1or #ega# 1ees be*ause in trut, ,e o2ed #ega# 1ees to 'tt6.
"o#osa and not to &etitioner. Petitioner *ontended t,at t,e *ase s,ou#d be de1erred
in vie2 o1 t,e &re)udi*ia# Fuestion raised in t,e *rimina# *om&#aint ,e 1i#ed be1ore
t,e @mbudsman against Dire*tor Iuensa#ida, 2,om &etitioner be#ieves ,ad
instigated t,is administrative *ase. :e a#so &ra6ed 1or t,e #i1ting o1 t,e &reventive
sus&ension im&osed on ,im. ;n its Reso#ution No. /-/519
A:6B
dated (ar*, 19,
.//-, t,e %"% denied t,e omnibus motion. +,e %"% reso#ved to treat t,e said
motion as &etitionerAs ans2er.
@n (ar*, 10, .//-, &etitioner 1i#ed an Brgent Petition
A:1B
under Ru#e 65 o1
t,e Ru#es o1 %ourt, do*3eted as %'!G.R. "P No. 98..0, assai#ing bot, t,e Januar6
11, .//- ",o2!%ause @rder and Reso#ution No. /-/38. dated =ebruar6 .6, .//-
as ,aving been issued 2it, grave abuse o1 dis*retion amounting to eG*ess or tota#
absen*e o1 )urisdi*tion. Prior to t,is, ,o2ever, &etitioner #odged an
administrativeE*rimina# *om&#aint against res&ondents Dire*tors Ra*Fue# D.G.
Iuensa#ida 8%,ie1 o1 "ta11, @11i*e o1 t,e %"% %,airman9 and 76dia '. %asti##o
8%"%!R@ ;<9 be1ore t,e @11i*e o1 t,e @mbudsman, and a se&arate *om&#aint 1or
disbarment against Dire*tor Iuensa#ida.
A:?B
@n '&ri# 1-, .//-, &etitioner re*eived a noti*e o1 ,earing 1rom t,e %"%
setting t,e 1orma# investigation o1 t,e *ase on '&ri# 3/, .//-. @n '&ri# .5, .//-,
,e 1i#ed in t,e %' an Brgent (otion 1or t,e issuan*e o1 +R@ and &re#iminar6
in)un*tion.
4155
"in*e ,e 1ai#ed to attend t,e &re!,earing *on1eren*e s*,edu#ed
on '&ri# 3/, .//-, t,e %"% reset t,e same to (a6 1-, .//- 2it, 2arning t,at t,e
1ai#ure o1 &etitioner andEor ,is *ounse# to a&&ear in t,e said &re!,earing *on1eren*e
s,a## entit#e t,e &rose*ution to &ro*eed 2it, t,e 1orma# investigation e7$parte.
A:>B
Petitioner moved to de1er or to reset t,e &re!,earing *on1eren*e, *#aiming t,at
t,e investigation &ro*eedings s,ou#d be ,e#d in abe6an*e &ending t,e reso#ution o1
,is &etition b6 t,e %'. +,e %"% denied ,is reFuest and again s*,edu#ed t,e &re!
,earing *on1eren*e on (a6 18, .//- 2it, simi#ar 2arning on t,e *onseFuen*es o1
&etitioner andEor ,is *ounse#As non!a&&earan*e.
A:<B
+,is &rom&ted &etitioner to 1i#e
anot,er motion in t,e %', to *ite t,e res&ondents, in*#uding t,e ,earing o11i*er, in
indire*t *ontem&t.
A:=B
@n June 1., .//-, t,e %"% issued Reso#ution No. /-1130
A:CB
den6ing
&etitionerAs motion to set aside t,e denia# o1 ,is motion to de1er t,e &ro*eedings
and to in,ibit t,e designated ,earing o11i*er, 'tt6. Iernard G. Jimene$. +,e
,earing o11i*er 2as dire*ted to &ro*eed 2it, t,e investigation &ro&er 2it, dis&at*,.
;n vie2 o1 t,e absen*e o1 &etitioner and ,is *ounse#, and u&on t,e motion o1
t,e &rose*ution, &etitioner 2as deemed to ,ave 2aived ,is rig,t to t,e 1orma#
investigation 2,i*, t,en &ro*eeded e7 parte.
@n Ju#6 .0, .//-, t,e %"% issued Reso#ution No. /-10./,
A62B
t,e dis&ositive
&art o1 2,i*, reads:
>:?R?=@R?, 1oregoing &remises *onsidered, t,e %ommission ,ereb6
1inds Iri**io '. Po##o, a.k.a. Ri*36 '. Po##o GB;7+ o1 Dis,onest6, Grave
(is*ondu*t, %ondu*t Pre)udi*ia# to t,e Iest ;nterest o1 t,e "ervi*e and <io#ation
o1 Re&ub#i* '*t 6-13. :e is meted t,e &ena#t6 o1 D;"(;""'7 =R@( +:?
"?R<;%? 2it, a## its a**essor6 &ena#ties, name#6, disFua#i1i*ation to ,o#d &ub#i*
o11i*e, 1or1eiture o1 retirement bene1its, *an*e##ation o1 *ivi# servi*e e#igibi#ities
and bar 1rom ta3ing 1uture *ivi# servi*e eGaminations.
A6:B
@n t,e &aramount issue o1 t,e #ega#it6 o1 t,e sear*, *ondu*ted on
&etitionerAs *om&uter, t,e %"% noted t,e deart, o1 )uris&ruden*e re#evant to t,e
1a*tua# mi#ieu o1 t,is *ase 2,ere t,e government as em&#o6er invades t,e &rivate
1i#es o1 an em&#o6ee stored in t,e *om&uter assigned to ,im 1or ,is o11i*ia# use, in
t,e *ourse o1 initia# investigation o1 &ossib#e mis*ondu*t *ommitted b6 said
em&#o6ee and 2it,out t,e #atterAs *onsent or &arti*i&ation. +,e %"% t,us turned to
re#evant ru#ings o1 t,e Bnited "tates "u&reme %ourt, and *ited t,e #eading *ase
o1 ODConnor v. Ortega
A66B
as aut,orit6 1or t,e vie2 t,at government agen*ies, in
t,eir *a&a*it6 as em&#o6ers, rat,er t,an #a2 en1or*ers, *ou#d va#id#6 *ondu*t sear*,
and sei$ure in t,e governmenta# 2or3&#a*e 2it,out meeting t,e K&robab#e *auseL
or 2arrant reFuirement 1or sear*, and sei$ure. 'not,er ru#ing *ited b6 t,e %"% is
t,e more re*ent *ase o1 @nited States v. *ark L. Simons
A61B
2,i*, de*#ared t,at t,e
1edera# agen*6As *om&uter use &o#i*6 1ore*#osed an6 in1eren*e o1 reasonab#e
eG&e*tation o1 &riva*6 on t,e &art o1 its em&#o6ees. +,oug, t,e %ourt t,erein
re*ogni$ed t,at su*, &o#i*6 did not, at t,e same time, erode t,e res&ondentAs
#egitimate eG&e*tation o1 &riva*6 in t,e o11i*e in 2,i*, t,e *om&uter 2as insta##ed,
sti##, t,e 2arrant#ess sear*, o1 t,e em&#o6eeAs o11i*e 2as u&,e#d as va#id be*ause a
government em&#o6er is entit#ed to *ondu*t a 2arrant#ess sear*, &ursuant to an
investigation o1 2or3!re#ated mis*ondu*t &rovided t,e sear*, is reasonab#e in its
in*e&tion and s*o&e.
>it, t,e 1oregoing 'meri*an )uris&ruden*e as ben*,mar3, t,e %"% ,e#d t,at
&etitioner ,as no reasonab#e eG&e*tation o1 &riva*6 2it, regard to t,e *om&uter ,e
2as using in t,e regiona# o11i*e in vie2 o1 t,e %"% *om&uter use &o#i*6 2,i*,
uneFuivo*a##6 de*#ared t,at a %"% em&#o6ee *annot assert an6 &riva*6 rig,t to a
*om&uter assigned to ,im. ?ven assuming t,at t,ere 2as no su*, administrative
&o#i*6, t,e %"% 2as o1 t,e vie2 t,at t,e sear*, o1 &etitionerAs *om&uter
su**ess1u##6 &assed t,e test o1 reasonab#eness 1or 2arrant#ess sear*,es in t,e
2or3&#a*e as enun*iated in t,e a1ore*ited aut,orities. +,e %"% stressed t,at it
&ursued t,e sear*, in its *a&a*it6 as government em&#o6er and t,at it 2as
underta3en in *onne*tion 2it, an investigation invo#ving 2or3!re#ated mis*ondu*t,
2,i*, eGem&ts it 1rom t,e 2arrant reFuirement under t,e %onstitution. >it, t,e
matter o1 admissibi#it6 o1 t,e eviden*e ,aving been reso#ved, t,e %"% t,en ru#ed
t,at t,e tota#it6 o1 eviden*e adeFuate#6 su&&orts t,e *,arges o1 grave mis*ondu*t,
dis,onest6, *ondu*t &re)udi*ia# to t,e best interest o1 t,e servi*e and vio#ation o1
R.'. No. 6-13 against t,e &etitioner. +,ese grave in1ra*tions )usti1ied &etitionerAs
dismissa# 1rom t,e servi*e 2it, a## its a**essor6 &ena#ties.
;n ,is (emorandum
A6?B
1i#ed in t,e %', &etitioner moved to in*or&orate t,e
above reso#ution dismissing ,im 1rom t,e servi*e in ,is main &etition, in #ieu o1 t,e
1i#ing o1 an a&&ea# via a Ru#e 03 &etition. ;n a subseFuent motion, ,e #i3e2ise
&ra6ed 1or t,e in*#usion o1 Reso#ution No. /-18//
A6;B
2,i*, denied ,is motion 1or
re*onsideration.
I6 De*ision dated @*tober 11, .//-, t,e %' dismissed t,e &etition 1or
*ertiorari a1ter 1inding no grave abuse o1 dis*retion *ommitted b6 res&ondents %"%
o11i*ia#s. +,e %' ,e#d t,at: 819 &etitioner 2as not *,arged on t,e basis o1 t,e
anon6mous #etter but 1rom t,e initiative o1 t,e %"% a1ter a 1a*t!1inding
investigation 2as *ondu*ted and t,e resu#ts t,ereo1 6ie#ded a prima a!ie *ase
against ,imH 8.9 it *ou#d not be said t,at in ordering t,e ba*3!u& o1 1i#es in
&etitionerAs *om&uter and #ater *on1is*ating t,e same, %,air&erson David ,ad
en*roa*,ed on t,e aut,orit6 o1 a )udge in vie2 o1 t,e %"% *om&uter &o#i*6
de*#aring t,e *om&uters as government &ro&ert6 and t,at em&#o6ee!users t,ereo1
,ave no reasonab#e eG&e*tation o1 &riva*6 in an6t,ing t,e6 *reate, store, send, or
re*eive on t,e *om&uter s6stemH and 839 t,ere is not,ing *ontem&tuous in %"%As
a*t o1 &ro*eeding 2it, t,e 1orma# investigation as t,ere 2as no restraining order or
in)un*tion issued b6 t,e %'.
:is motion 1or re*onsideration ,aving been denied b6 t,e %', &etitioner
broug,t t,is a&&ea# arguing t,at J
;
+:? :@N@R'I7? %@BR+ @= 'PP?'7" GR;?<@B"7 ?RR?D 'ND
%@((;++?D "?R;@B" ;RR?GB7'R;+ 'ND I7'+'N+ ?RR@R" ;N
7'> '(@BN+;NG +@ GR'<? 'IB"? @= D;"%R?+;@N >:?N ;+ RB7?D
+:'+ 'N@N(@B" %@(P7';N+ ;" '%+;@N'I7? BND?R ?.@.
.9. >:?N ;N +RB+: 'ND ;N ='%+ +:? %@N+R'R ;" ?CP7;%;+7
PR@<;D?D BND?R .
nd
P'R'GR'P: @= "?%+;@N 8 @= %"% R?"@7B+;@N
N@. 99!1936, >:;%: ;" 'N 4'(?ND(?N+5 +@ +:? @R;G;N'7 RB7?"
P?R %"% R?"@7B+;@N N@. 90!/5.1H
;;
+:? :@N@R'I7? %@BR+ GR;?<@B"7 ?RR?D 'ND %@((;++?D
P'7P'I7? ?RR@R" ;N 7'> '(@BN+;NG +@ GR'<? 'IB"? @=
D;"%R?+;@N >:?N ;+ RB7?D +:'+ P?+;+;@N?R %'NN@+ ;N<@N?
:;" R;G:+ +@ PR;<'%, +@ BNR?'"@N'I7? "?'R%: 'ND "?;RBR?,
'G';N"+ "?7=!;N%R;(;N'+;@N, I <;R+B? @= @==;%?
(?(@R'NDB( N@. 1/ ". .//., ' (?R? ;N+?RN'7 (?(@R'NDB(
";GN?D "@7?7 'ND ?C%7B";<?7 I R?"P@ND?N+ D'<;D 'ND
N@+ I +:? %@77?G;'7 %@((;"";@N %@N";D?R;NG +:'+ P@7;%
('++?R" ;N<@7<;NG "BI4"5+'N+;'7 R;G:+" %'NN@+ I? %@<?R?D
I 'N @==;%? (?(@R'NDB( >:;%: ;" 7;(;+?D +@ PR@%?DBR'7
'ND R@B+;N'R ;N"+RB%+;@NH
;;;
+:? :@N@R'I7? %@BR+ GR'<?7 ?RR?D 'ND %@((;++?D GR'<?
'IB"? @= D;"%R?+;@N >:?N ;+ RB7?D +:'+ (?(@ "?'R%: D'+?D
J'NB'R 3, .//- 'ND +:? +'N;NG @= D@%B(?N+" ;N +:? ?<?N;NG
+:?R?@= =R@( -:// +@ 1/:// P.(. ;" N@+ GR'<? 'IB"? @=
D;"%R?+;@N 7;(;+;NG +:? D?=;N;+;@N 4@=5 GR'<? 'IB"? @=
D;"%R?+;@N +@ @N? ;N<@7<;NG 'ND +';N+?D >;+: P?R"@N'7
:@"+;7;+. ;+ 7;N?>;"? ?RR?D ;N :@7D;NG +:'+ D'+' "+@R?D ;N
+:? G@<?RN(?N+ %@(PB+?R" 'R? G@<?RN(?N+ PR@P?R+;?"
;N%7BD;NG +:? P?R"@N'7 =;7?" >:?N +:? %@N+R'R ;"
PR@<;D?D BND?R "?%+;@N 10 @= @(. 1/ s. .//.. 'ND GR;?<@B"7
?RR?D "+;77 >:?N ;+ RB7?D +:'+ R?"P@ND?N+ D'<;D I <;R+B?
@= @.(. 1/ D;D N@+ ?N%R@'%: @N +:? DB+;?" 'ND =BN%+;@N" @=
' JBDG? PBR"B'N+ +@ 'R+;%7? ;;;, "?%+;@N . @= +:? 198-
P:;7;PP;N? %@N"+;+B+;@NH
;<
+:? :@N@R'I7? %@BR+ ?RR?D >:?N ;+ =';7?D +@ %@N";D?R '77
@+:?R N?> 'RGB(?N+", 'DD;+;@N'7 ?<;D?N%? :?R?BN+@
"BI(;++?D '" >?77 '" ;+" =';7BR? +@ ?<'7B'+? 'ND +'N?
'%+;@N @N +:? . (@+;@N" +@ 'D(;+ 'ND ;N%@RP@R'+? %"%
R?"@7B+;@N N@". /-!10./ D'+?D JB7 .0, .//- 'ND %"%
R?"@7B+;@N /-!18// D'+?D "?P+?(I?R 1/, .//-. ;+ D;D N@+ RB7?
7;N?>;"? @N +:? =@BR BRG?N+ (@+;@N +@ R?"@7<? 'N%;77'R
PR'?R =@R +R@.
A6>B
"Fuare#6 raised b6 t,e &etitioner is t,e #ega#it6 o1 t,e sear*, *ondu*ted on
,is o11i*e *om&uter and t,e *o&6ing o1 ,is &ersona# 1i#es 2it,out ,is 3no2#edge
and *onsent, a##eged as a transgression on ,is *onstitutiona# rig,t to &riva*6.
+,e rig,t to &riva*6 ,as been a**orded re*ognition in t,is )urisdi*tion as a
1a*et o1 t,e rig,t &rote*ted b6 t,e guarantee against unreasonab#e sear*, and
sei$ure under "e*tion ., 'rti*#e ;;; o1 t,e 198- %onstitution,
A6<B
2,i*, &rovides:
"?%. .. +,e rig,t o1 t,e &eo&#e to be se*ure in t,eir &ersons, ,ouses,
&a&ers, and e11e*ts against unreasonab#e sear*,es and sei$ures o1 2,atever nature
and 1or an6 &ur&ose s,a## be invio#ab#e, and no sear*, 2arrant or 2arrant o1 arrest
s,a## issue eG*e&t u&on &robab#e *ause to be determined &ersona##6 b6 t,e )udge
a1ter eGamination under oat, or a11irmation o1 t,e *om&#ainant and t,e 2itnesses
,e ma6 &rodu*e, and &arti*u#ar#6 des*ribing t,e &#a*e to be sear*,ed and t,e
&ersons or t,ings to be sei$ed.
+,e *onstitutiona# guarantee is not a &ro,ibition o1 a## sear*,es and sei$ures
but on#6 o1 Kunreasonab#eL sear*,es and sei$ures.
A6=B
Iut to 1u##6 understand t,is
*on*e&t and a&&#i*ation 1or t,e &ur&ose o1 reso#ving t,e issue at ,and, it is essentia#
t,at 2e eGamine t,e do*trine in t,e #ig,t o1 &ronoun*ements in anot,er
)urisdi*tion. 's t,e %ourt de*#ared in 9eople v. *arti
A6CB
:
@ur &resent *onstitutiona# &rovision on t,e guarantee against unreasonab#e
sear*, and sei$ure ,ad its origin in t,e 1935 %,arter 2,i*,, 2orded as 1o##o2s:
K+,e rig,t o1 t,e &eo&#e to be se*ure in t,eir &ersons,
,ouses, &a&ers and e11e*ts against unreasonab#e sear*,es and
sei$ures s,a## not be vio#ated, and no 2arrants s,a## issue but
u&on probable *ause, to be determined b6 t,e )udge a1ter
eGamination under oat, or a11irmation o1 t,e *om&#ainant and t,e
2itnesses ,e ma6 &rodu*e, and &arti*u#ar#6 des*ribing t,e &#a*e to
be sear*,ed, and t,e &ersons or t,ings to be sei$ed.L 8"e*. 1435,
'rti*#e ;;;9
2as in turn derived a#most verbatim 1rom t,e =ourt, 'mendment to t,e Bnited
"tates %onstitution. 's su*,, t,e %ourt ma6 turn to t,e &ronoun*ements o1 t,e
Bnited "tates =edera# "u&reme %ourt and "tate '&&e##ate %ourts 2,i*, are
*onsidered do*trina# in t,is )urisdi*tion.
A12B
;n t,e 196- *ase o1 Gat( v. @nited States,
A1:B
t,e B" "u&reme %ourt ,e#d t,at
t,e a*t o1 =I; agents in e#e*troni*a##6 re*ording a *onversation made b6 &etitioner
in an en*#osed &ub#i* te#e&,one boot, vio#ated ,is rig,t to &riva*6 and *onstituted
a Ksear*, and sei$ureL. Ie*ause t,e &etitioner ,ad a reasonab#e eG&e*tation o1
&riva*6 in using t,e en*#osed boot, to ma3e a &ersona# te#e&,one *a##, t,e
&rote*tion o1 t,e =ourt, 'mendment eGtends to su*, area. ;n t,e *on*urring
o&inion o1 (r. Justi*e :ar#an, it 2as 1urt,er noted t,at t,e eGisten*e o1 &riva*6
rig,t under &rior de*isions invo#ved a t2o!1o#d reFuirement: 1irst, t,at a &erson ,as
eG,ibited an a*tua# 8sub)e*tive9 eG&e*tation o1 &riva*6H and se*ond, t,at t,e
eG&e*tation be one t,at so*iet6 is &re&ared to re*ogni$e as reasonab#e 8ob)e*tive9.
A16B
;n *an!usi v. :e/orte
A11B
2,i*, addressed t,e reasonab#e eG&e*tations
o1 private em&#o6ees in t,e 2or3&#a*e, t,e B" "u&reme %ourt ,e#d t,at a union
em&#o6ee ,ad =ourt, 'mendment rig,ts 2it, regard to an o11i*e at union
,eadFuarters t,at ,e s,ared 2it, ot,er union o11i*ia#s, even as t,e #atter or t,eir
guests *ou#d enter t,e o11i*e. +,e %ourt t,us Kre*ogni$ed t,at em&#o6ees ma6
,ave a reasonab#e eG&e*tation o1 &riva*6 against intrusions b6 &o#i*e.L
+,at t,e =ourt, 'mendment eFua##6 a&&#ies to a government 2or3&#a*e 2as
addressed in t,e 198- *ase o1 ODConnor v. Ortega
A1?B
2,ere a &,6si*ian, Dr. (agno
@rtega, 2,o 2as em&#o6ed b6 a state ,os&ita#, *#aimed a vio#ation o1 ,is =ourt,
'mendment rig,ts 2,en ,os&ita# o11i*ia#s investigating *,arges o1 mismanagement
o1 t,e &s6*,iatri* residen*6 &rogram, seGua# ,arassment o1 1ema#e ,os&ita#
em&#o6ees and ot,er irregu#arities invo#ving ,is &rivate &atients under t,e state
medi*a# aid &rogram, sear*,ed ,is o11i*e and sei$ed &ersona# items 1rom ,is des3
and 1i#ing *abinets. ;n t,at *ase, t,e %ourt *ategori*a##6 de*#ared t,at K4i5ndividua#s
do not #ose =ourt, 'mendment rig,ts mere#6 be*ause t,e6 2or3 1or t,e
government instead o1 a &rivate em&#o6er.L
A1;B
' &#ura#it6 o1 1our Justi*es
*on*urred t,at t,e *orre*t ana#6sis ,as t2o ste&s: 1irst, be*ause Ksome government
o11i*es ma6 be so o&en to 1e##o2 em&#o6ees or t,e &ub#i* t,at no eG&e*tation o1
&riva*6 is reasonab#eL, a *ourt must *onsider K4t5,e o&erationa# rea#ities o1 t,e
2or3&#a*eL in order to determine 2,et,er an em&#o6eeAs =ourt, 'mendment rig,ts
are im&#i*atedH and neGt, 2,ere an em&#o6ee ,as a #egitimate &riva*6 eG&e*tation,
an em&#o6erAs intrusion on t,at eG&e*tation K1or noninvestigator6, 2or3!re#ated
&ur&oses, as 2e## as 1or investigations o1 2or3!re#ated mis*ondu*t, s,ou#d be
)udged b6 t,e standard o1 reasonab#eness under a## t,e *ir*umstan*es.L
A1>B
@n t,e matter o1 government em&#o6eesA reasonab#e eG&e*tations o1 &riva*6
in t,eir 2or3&#a*e, ODConnor tea*,es:
G G G Pub#i* em&#o6eesA eG&e*tations o1 &riva*6 in t,eir o11i*es, des3s, and
1i#e *abinets, #i3e simi#ar eG&e*tations o1 em&#o6ees in t,e &rivate se*tor, ma6 be
redu*ed b6 virtue o1 a*tua# o11i*e &ra*ti*es and &ro*edures, or b6 #egitimate
regu#ation. G G G +,e em&#o6eeAs eG&e*tation o1 &riva*6 must be assessed in t,e
*onteGt o1 t,e em&#o6ment re#ation. 'n o11i*e is se#dom a &rivate en*#ave 1ree
1rom entr6 b6 su&ervisors, ot,er em&#o6ees, and business and &ersona#
invitees. ;nstead, in man6 *ases o11i*es are *ontinua##6 entered b6 1e##o2
em&#o6ees and ot,er visitors during t,e 2or3da6 1or *on1eren*es, *onsu#tations,
and ot,er 2or3!re#ated visits. "im &ut, it is t,e nature o1 government o11i*es
t,at ot,ers J su*, as 1e##o2 em&#o6ees, su&ervisors, *onsensua# visitors, and t,e
genera# &ub#i* J ma6 ,ave 1reFuent a**ess to an individua#As o11i*e. >e agree
2it, JB"+;%? "%'7;' t,at K4*5onstitutiona# &rote*tion against unreasonab#e
sear*,es b6 t,e government does not disa&&ear mere#6 be*ause t,e government
,as t,e rig,t to ma3e reasonab#e intrusions in its *a&a*it6 as em&#o6er,L G G G
but &)e !*ern)en# $$"ce& )a' -e & (en # $e,,/ e)(,'ee& r #%e
(+-,"c #%a# n ex(ec#a#"n $ (r"*ac' "& rea&na-,e. G G G G"*en #%e !rea#
*ar"e#' $ /rE en*"rn)en#& "n #%e (+-,"c &ec#r, #%e .+e&#"n $ /%e#%er an
e)(,'ee %a& a rea&na-,e ex(ec#a#"n $ (r"*ac' )+&# -e addre&&ed n a
ca&e--'-ca&e -a&"&.
A1<B
8%itations omittedH em&,asis su&&#ied.9
@n t,e basis o1 t,e estab#is,ed ru#e in &revious *ases, t,e B" "u&reme %ourt
de*#ared t,at Dr. @rtegaAs =ourt, 'mendment rig,ts are im&#i*ated on#6 i1 t,e
*ondu*t o1 t,e ,os&ita# o11i*ia#s in1ringed Kan eG&e*tation o1 &riva*6 t,at so*iet6 is
&re&ared to *onsider as reasonab#e.L Given t,e undis&uted eviden*e t,at
res&ondent Dr. @rtega did not s,are ,is des3 or 1i#e *abinets 2it, an6 ot,er
em&#o6ees, 3e&t &ersona# *orres&onden*e and ot,er &rivate items in ,is o2n o11i*e
2,i#e t,ose 2or3!re#ated 1i#es 8on &,6si*ians in residen*6 training9 2ere stored
outside ,is o11i*e, and t,ere being no eviden*e t,at t,e ,os&ita# ,ad estab#is,ed an6
reasonab#e regu#ation or &o#i*6 dis*ouraging em&#o6ees 1rom storing &ersona#
&a&ers and e11e*ts in t,eir des3s or 1i#e *abinets 8a#t,oug, t,e absen*e o1 su*, a
&o#i*6 does not *reate an6 eG&e*tation o1 &riva*6 2,ere it 2ou#d not ot,er2ise
eGist9, t,e %ourt *on*#uded t,at Dr. @rtega ,as a reasonab#e eG&e*tation o1 &riva*6
at #east in ,is des3 and 1i#e *abinets.
A1=B
Pro*eeding to t,e neGt inFuir6 as to 2,et,er t,e sear*, *ondu*ted b6
,os&ita# o11i*ia#s 2as reasonab#e, t,e ODConnor &#ura#it6 de*ision dis*ussed t,e
1o##o2ing &rin*i&#es:
:aving determined t,at Dr. @rtega ,ad a reasonab#e eG&e*tation o1
&riva*6 in ,is o11i*e, t,e %ourt o1 '&&ea#s sim *on*#uded 2it,out dis*ussion
t,at t,e Ksear*,M2as not a reasonab#e sear*, under t,e 1ourt, amendment.L G G
G K4t5o ,o#d t,at t,e =ourt, 'mendment a&&#ies to sear*,es *ondu*ted b6 4&ub#i*
em&#o6ers5 is on#6 to begin t,e inFuir6 into t,e standards governing su*,
sear*,esM4>5,at is reasonab#e de&ends on t,e *onteGt 2it,in 2,i*, a sear*,
ta3es &#a*e. G G G +,us, 2e must determine t,e a&&ro&riate standard o1
reasonab#eness a&&#i*ab#e to t,e sear*,. ' determination o1 t,e standard o1
reasonab#eness a&&#i*ab#e to a &arti*u#ar *#ass o1 sear*,es reFuires Kba#an*4ing5
t,e nature and Fua#it6 o1 t,e intrusion on t,e individua#As =ourt, 'mendment
interests against t,e im&ortan*e o1 t,e governmenta# interests a##eged to
)usti16 t,e intrusion.L G G G In #%e ca&e $ &earc%e& cnd+c#ed -' a (+-,"c
e)(,'er, /e )+&# -a,ance #%e "n*a&"n $ #%e e)(,'ee&I ,e!"#")a#e
ex(ec#a#"n& $ (r"*ac' a!a"n&# #%e !*ern)en#I& need $r &+(er*"&"n,
cn#r,, and #%e e$$"c"en# (era#"n $ #%e /rE(,ace.
G G G G
;n our vie2, reFuiring an em&#o6er to obtain a 2arrant 2,enever t,e
em&#o6er 2is,ed to enter an em&#o6eeAs o11i*e, des3, or 1i#e *abinets 1or a 2or3!
re#ated &ur&ose 2ou#d serious#6 disru&t t,e routine *ondu*t o1 business and 2ou#d
be undu#6 burdensome. ;m&osing un2ie#d6 2arrant &ro*edures in su*, *ases
u&on su&ervisors, 2,o 2ou#d ot,er2ise ,ave no reason to be 1ami#iar 2it, su*,
&ro*edures, is sim unreasonab#e. ;n *ontrast to ot,er *ir*umstan*es in 2,i*,
2e ,ave reFuired 2arrants, su&ervisors in o11i*es su*, as at t,e :os&ita# are
,ard#6 in t,e business o1 investigating t,e vio#ation o1 *rimina# #a2s. Rat,er,
2or3!re#ated sear*,es are mere#6 in*ident to t,e &rimar6 business o1 t,e
agen*6. Bnder t,ese *ir*umstan*es, t,e im&osition o1 a 2arrant reFuirement
2ou#d *on1#i*t 2it, t,e K*ommon!sense rea#i$ation t,at government o11i*es *ou#d
not 1un*tion i1 ever6 em&#o6ment de*ision be*ame a *onstitutiona# matter.L G G G
G G G G
+,e governmenta# interest )usti16ing 2or3!re#ated intrusions b6 &ub#i*
em&#o6ers is t,e e11i*ient and &ro&er o&eration o1 t,e 2or3&#a*e. Government
agen*ies &rovide m6riad servi*es to t,e &ub#i*, and t,e 2or3 o1 t,ese agen*ies
2ou#d su11er i1 em&#o6ers 2ere reFuired to ,ave &robab#e *ause be1ore t,e6
entered an em&#o6eeAs des3 1or t,e &ur&ose o1 1inding a 1i#e or &ie*e o1 o11i*e
*orres&onden*e. ;ndeed, it is di11i*u#t to give t,e *on*e&t o1 &robab#e *ause,
rooted as it is in t,e *rimina# investigator6 *onteGt, mu*, meaning 2,en t,e
&ur&ose o1 a sear*, is to retrieve a 1i#e 1or 2or3!re#ated reasons. "imi#ar#6, t,e
*on*e&t o1 &robab#e *ause ,as #itt#e meaning 1or a routine inventor6 *ondu*ted b6
&ub#i* em&#o6ers 1or t,e &ur&ose o1 se*uring state &ro&ert6. G G G +o ensure t,e
e11i*ient and &ro&er o&eration o1 t,e agen*6, t,ere1ore, &ub#i* em&#o6ers must be
given 2ide #atitude to enter em&#o6ee o11i*es 1or 2or3!re#ated, noninvestigator6
reasons.
>e *ome to a simi#ar *on*#usion 1or sear*,es *ondu*ted &ursuant to an
investigation o1 2or3!re#ated em&#o6ee mis*ondu*t. ?ven 2,en em&#o6ers
*ondu*t an investigation, t,e6 ,ave an interest substantia##6 di11erent 1rom Kt,e
norma# need 1or #a2 en1or*ement.L G G G Pub#i* em&#o6ers ,ave an interest in
ensuring t,at t,eir agen*ies o&erate in an e11e*tive and e11i*ient manner, and t,e
2or3 o1 t,ese agen*ies inevitab#6 su11ers 1rom t,e ine11i*ien*6, in*om&eten*e,
mismanagement, or ot,er 2or3!re#ated mis1easan*e o1 its em&#o6ees. ;ndeed, in
man6 *ases, &ub#i* em&#o6ees are entrusted 2it, tremendous res&onsibi#it6, and
t,e *onseFuen*es o1 t,eir mis*ondu*t or in*om&eten*e to bot, t,e agen*6 and t,e
&ub#i* interest *an be severe. ;n *ontrast to #a2 en1or*ement o11i*ia#s, t,ere1ore,
&ub#i* em&#o6ers are not en1or*ers o1 t,e *rimina# #a2H instead, &ub#i* em&#o6ers
,ave a dire*t and overriding interest in ensuring t,at t,e 2or3 o1 t,e agen*6 is
*ondu*ted in a &ro&er and e11i*ient manner. ;n our vie2, t,ere1ore, a (r-a-,e
ca+&e re.+"re)en# $r &earc%e& $ #%e #'(e a# "&&+e %ere /+,d ")(&e
"n#,era-,e -+rden& n (+-,"c e)(,'er&. T%e de,a' "n crrec#"n! #%e
e)(,'ee )"&cnd+c# ca+&ed -' #%e need $r (r-a-,e ca+&e ra#%er #%an
rea&na-,e &+&("c"n /",, -e #ran&,a#ed "n# #an!"-,e and $#en "rre(ara-,e
da)a!e # #%e a!enc'I& /rE, and +,#")a#e,' # #%e (+-,"c "n#ere&#. G G G
G G G G
;n sum, 2e *on*#ude #%a# #%e F&(ec"a, need&, -e'nd #%e nr)a, need
$r ,a/ en$rce)en# )aEe #%eJ(r-a-,e-ca+&e re.+"re)en# ")(rac#"ca-,e,G
x x x $r ,e!"#")a#e, /rE-re,a#ed nn"n*e&#"!a#r' "n#r+&"n& a& /e,, a&
"n*e&#"!a#"n& $ /rE-re,a#ed )"&cnd+c#. ' standard o1 reasonab#eness 2i##
neit,er undu#6 burden t,e e11orts o1 government em&#o6ers to ensure t,e e11i*ient
and &ro&er o&eration o1 t,e 2or3&#a*e, nor aut,ori$e arbitrar6 intrusions u&on t,e
&riva*6 o1 &ub#i* em&#o6ees. >e ,o#d, t,ere1ore, t,at (+-,"c e)(,'er
"n#r+&"n& n #%e cn&#"#+#"na,,' (r#ec#ed (r"*ac' "n#ere&#& $ !*ern)en#
e)(,'ee& $r nn"n*e&#"!a#r', /rE-re,a#ed (+r(&e&, a& /e,, a&
$r "n*e&#"!a#"n& $ /rE-re,a#ed )"&cnd+c#, &%+,d -e 0+d!ed -'
#%e &#andard $ rea&na-,ene&& +nder a,, #%e c"rc+)&#ance&. Bnder t,is
reasonab#eness standard, -#% #%e "nce(#"n and #%e &c(e $ #%e "n#r+&"n
)+&# -e rea&na-,e9
KDetermining t,e reasonab#eness o1 an6 sear*, invo#ves a t2o1o#d
inFuir6: 1irst, one must *onsider T2,et,er t,eMa*tion 2as )usti1ied
at its in*e&tion,A G G G H se*ond, one must determine 2,et,er t,e
sear*, as a*tua##6 *ondu*ted T2as reasonab#6 re#ated in s*o&e to
t,e *ir*umstan*es 2,i*, )usti1ied t,e inter1eren*e in t,e 1irst
&#a*e,AL G G G
@rdinari#6, a &earc% $ an e)(,'eeI& $$"ce -' a &+(er*"&r /",, -e
F0+&#"$"ed a# "#& "nce(#"nG /%en #%ere are rea&na-,e !r+nd& $r &+&(ec#"n!
#%a# #%e &earc% /",, #+rn +( e*"dence #%a# #%e e)(,'ee "& !+",#' $ /rE-
re,a#ed )"&cnd+c#, r #%a# #%e &earc% "& nece&&ar' $r a nn"n*e&#"!a#r'
/rE-re,a#ed (+r(&e su*, as to retrieve a needed 1i#e. G G G T%e &earc% /",, -e
(er)"&&"-,e "n "#& &c(e /%en F#%e )ea&+re& ad(#ed are rea&na-,' re,a#ed
# #%e -0ec#"*e& $ #%e &earc% and n# exce&&"*e,' "n#r+&"*e "n ,"!%# $ J#%e
na#+re $ #%e A)"&cnd+c#5.L G G G
A1CB
8%itations omittedH em&,asis su&&#ied.9
"in*e t,e Distri*t %ourt granted summar6 )udgment 2it,out a ,earing on t,e
1a*tua# dis&ute as to t,e *,ara*ter o1 t,e sear*, and neit,er 2as t,ere an6 1inding
made as to t,e s*o&e o1 t,e sear*, t,at 2as underta3en, t,e *ase 2as remanded to
said *ourt 1or t,e determination o1 t,e )usti1i*ation 1or t,e sear*, and sei$ure, and
eva#uation o1 t,e reasonab#eness o1 bot, t,e in*e&tion o1 t,e sear*, and its s*o&e.
;n ODConnor t,e %ourt re*ogni$ed t,at Ks&e*ia# needsL aut,ori$e 2arrant#ess
sear*,es invo#ving &ub#i* em&#o6ees 1or 2or3!re#ated reasons. +,e %ourt t,us #aid
do2n a ba#an*ing test under 2,i*, government interests are 2eig,ed against t,e
em&#o6eeAs reasonab#e eG&e*tation o1 &riva*6. +,is reasonab#eness test im&#i*ates
neit,er &robab#e *ause nor t,e 2arrant reFuirement, 2,i*, are re#ated to #a2
en1or*ement.
A?2B
ODConnor 2as a&&#ied in subseFuent *ases raising issues on em&#o6eesA
&riva*6 rig,ts in t,e 2or3&#a*e. @ne o1 t,ese *ases invo#ved a government
em&#o6erAs sear*, o1 an o11i*e *om&uter, @nited States v. *ark L. Simons
A?:B
2,ere
t,e de1endant "imons, an em&#o6ee o1 a division o1 t,e %entra# ;nte##igen*e
'gen*6 8%;'9, 2as *onvi*ted o1 re*eiving and &ossessing materia#s *ontaining
*,i#d &ornogra&,6. "imons 2as &rovided 2it, an o11i*e 2,i*, ,e did not s,are
2it, an6one, and a *om&uter 2it, ;nternet a**ess. +,e agen*6 ,ad instituted a
&o#i*6 on *om&uter use stating t,at em&#o6ees 2ere to use t,e ;nternet 1or o11i*ia#
government business on#6 and t,at a**essing un#a21u# materia# 2as s&e*i1i*a##6
&ro,ibited. +,e &o#i*6 a#so stated t,at users s,a## understand t,at t,e agen*6 2i##
&eriodi*a##6 audit, ins&e*t, andEor monitor t,e userAs ;nternet a**ess as deemed
a&&ro&riate. %;' agents instru*ted its *ontra*tor 1or t,e management o1 t,e
agen*6As *om&uter net2or3, u&on initia# dis*over6 o1 &ro,ibited internet a*tivit6
originating 1rom "imonsA *om&uter, to *ondu*t a remote monitoring and
eGamination o1 "imonsA *om&uter. '1ter *on1irming t,at "imons ,ad indeed
do2n#oaded &i*tures t,at 2ere &ornogra&,i* in nature, a## t,e 1i#es on t,e ,ard
drive o1 "imonAs *om&uter 2ere *o&ied 1rom a remote 2or3 station. Da6s #ater,
t,e *ontra*torAs re&resentative 1ina##6 entered "imonAs o11i*e, removed t,e origina#
,ard drive on "imonAs *om&uter, re&#a*ed it 2it, a *o&6, and gave t,e origina# to
t,e agen*6 se*urit6 o11i*er. +,erea1ter, t,e agen*6 se*ured 2arrants and sear*,ed
"imonsA o11i*e in t,e evening 2,en "imons 2as not around. +,e sear*,
team !opied t,e *ontents o1 "imonsA *om&uterH *om&uter dis3ettes 1ound in
"imonsA des3 dra2erH *om&uter 1i#es stored on t,e $i& drive or on $i& drive
dis3ettesH videota&esH and various do*uments, in*#uding &ersona#
*orres&onden*e. 't ,is tria#, "imons moved to su&&ress t,ese eviden*e, arguing
t,at t,e sear*,es o1 ,is o11i*e and *om&uter vio#ated ,is =ourt, 'mendment
rig,ts. '1ter a ,earing, t,e distri*t *ourt denied t,e motion and "imons 2as 1ound
gui#t6 as *,arged.
"imons a&&ea#ed ,is *onvi*tions. +,e B" "u&reme %ourt ru#ed t,at t,e
sear*,es o1 "imonsA *om&uter and o11i*e did not vio#ate ,is =ourt, 'mendment
rig,ts and t,e 1irst sear*, 2arrant 2as va#id. ;t ,e#d t,at t,e sear*, remains va#id
under t,e ODConnoreG*e&tion to t,e 2arrant reFuirement be*ause eviden*e o1 t,e
*rime 2as dis*overed in t,e *ourse o1 an ot,er2ise &ro&er administrative
ins&e*tion. "imonsA vio#ation o1 t,e agen*6As ;nternet &o#i*6 ,a&&ened a#so to be a
vio#ation o1 *rimina# #a2H t,is does not mean t,at said em&#o6er #ost t,e *a&a*it6
and interests o1 an em&#o6er. +,e 2arrant#ess entr6 into "imonsA o11i*e 2as
reasonab#e under t,e =ourt, 'mendment standard announ*ed in ODConnor be*ause
at t,e in*e&tion o1 t,e sear*,, t,e em&#o6er ,ad Kreasonab#e grounds 1or
sus&e*tingL t,at t,e ,ard drive 2ou#d 6ie#d eviden*e o1 mis*ondu*t, as t,e
em&#o6er 2as a#read6 a2are t,at "imons ,ad misused ,is ;nternet a**ess to
do2n#oad over a t,ousand &ornogra&,i* images. +,e retrieva# o1 t,e ,ard drive
2as reasonab#6 re#ated to t,e ob)e*tive o1 t,e sear*,, and t,e sear*, 2as not
eG*essive#6 intrusive. +,us, 2,i#e "imons ,ad a reasonab#e eG&e*tation o1 &riva*6
in ,is o11i*e, ,e did not ,ave su*, #egitimate eG&e*tation o1 &riva*6 2it, regard to
t,e 1i#es in ,is *om&uter.
G G G +o estab#is, a vio#ation o1 ,is rig,ts under t,e =ourt, 'mendment,
"imons must 1irst &rove t,at ,e ,ad a #egitimate eG&e*tation o1 &riva*6 in t,e
&#a*e sear*,ed or t,e item sei$ed. G G G 'nd, in order to &rove a #egitimate
eG&e*tation o1 &riva*6, "imons must s,o2 t,at ,is sub)e*tive eG&e*tation o1
&riva*6 is one t,at so*iet6 is &re&ared to a**e&t as ob)e*tive#6 reasonab#e. G G G
G G G G
G G G >e *on*#ude t,at t,e remote sear*,es o1 "imonsA *om&uter did not
vio#ate ,is =ourt, 'mendment rig,ts be*ause, in #ig,t o1 t,e ;nternet &o#i*6,
"imons #a*3ed a #egitimate eG&e*tation o1 &riva*6 in t,e 1i#es do2n#oaded 1rom
t,e ;nternet. 'dditiona##6, 2e *on*#ude t,at "imonsA =ourt, 'mendment rig,ts
2ere not vio#ated b6 =I;"A retrieva# o1 "imonsA ,ard drive 1rom ,is o11i*e.
S")n& d"d n# %a*e a ,e!"#")a#e ex(ec#a#"n $ (r"*ac' /"#% re!ard #
#%e recrd r $r+"#& $ %"& In#erne# +&e "n ,"!%# $ #%e 4BIS In#erne#
(,"c'. T%e (,"c' c,ear,' &#a#ed #%a# 4BIS /+,d Fa+d"#, "n&(ec#, andKr
)n"#rG e)(,'ee&I +&e $ #%e In#erne#, "nc,+d"n! a,, $",e #ran&$er&, a,,
/e-&"#e& *"&"#ed, and a,, e-)a", )e&&a!e&, Fa& dee)ed a((r(r"a#e.G G G
G +,is &o#i*6 &#a*ed em&#o6ees on noti*e t,at t,e6 *ou#d not reasonab#6 eG&e*t
t,at t,eir ;nternet a*tivit6 2ou#d be &rivate. +,ere1ore, regard#ess o1 2,et,er
"imons sub)e*tive#6 be#ieved t,at t,e 1i#es ,e trans1erred 1rom t,e ;nternet 2ere
&rivate, su*, a be#ie1 2as not ob)e*tive#6 reasonab#e a1ter =I;" noti1ied ,im t,at
it 2ou#d be overseeing ,is ;nternet use. G G G '**ording#6, =I;"A a*tions in
remote#6 sear*,ing and sei$ing t,e *om&uter 1i#es "imons do2n#oaded 1rom t,e
;nternet did not vio#ate t,e =ourt, 'mendment.
G G G G
T%e -+rden "& n S")n& # (r*e #%a# %e %ad a ,e!"#")a#e ex(ec#a#"n
$ (r"*ac' "n %"& $$"ce. G G G :ere, "imons ,as s,o2n t,at ,e ,ad an o11i*e t,at
,e did not s,are. 's noted above, t,e o&erationa# rea#ities o1 "imonsA 2or3&#a*e
ma6 ,ave diminis,ed ,is #egitimate &riva*6 eG&e*tations. :o2ever, t,ere is no
eviden*e in t,e re*ord o1 an6 2or3&#a*e &ra*ti*es, &ro*edures, or regu#ations t,at
,ad su*, an e11e*t. >e t,ere1ore *on*#ude t,at, on t,is re*ord, S")n& (&&e&&ed
a ,e!"#")a#e ex(ec#a#"n $ (r"*ac' "n %"& $$"ce.
G G G G
;n t,e 1ina# ana#6sis, t,is *ase invo#ves an em&#o6eeAs su&ervisor entering
t,e em&#o6eeAs government o11i*e and retrieving a &ie*e o1 government
eFui&ment in 2,i*, t,e em&#o6ee ,ad abso#ute#6 no eG&e*tation o1 &riva*6 J
eFui&ment t,at t,e em&#o6er 3ne2 *ontained eviden*e o1 *rimes *ommitted b6
t,e em&#o6ee in t,e em&#o6eeAs o11i*e. +,is situation ma6 be *ontrasted 2it, one
in 2,i*, t,e *rimina# a*ts o1 a government em&#o6ee 2ere unre#ated to ,is
em&#o6ment. :ere, t,ere 2as a *on)un*tion o1 t,e *ondu*t t,at vio#ated t,e
em&#o6erAs &o#i*6 and t,e *ondu*t t,at vio#ated t,e *rimina# #a2. >e *onsider
t,at =I;"A intrusion into "imonsA o11i*e to retrieve t,e ,ard drive is one in 2,i*, a
reasonab#e em&#o6er mig,t engage. G G G
A?6B
8%itations omittedH em&,asis
su&&#ied.9
+,is %ourt, in So!ial Justi!e So!iety 5SJS6 v. :angerous :rugs
2oard
A?1B
2,i*, invo#ved t,e *onstitutiona#it6 o1 a &rovision in R.'. No. 9165
reFuiring mandator6 drug testing o1 *andidates 1or &ub#i* o11i*e, students o1
se*ondar6 and tertiar6 s*,oo#s, o11i*ers and em&#o6ees o1 &ub#i* and &rivate
o11i*es, and &ersons *,arged be1ore t,e &rose*utorAs o11i*e 2it, *ertain o11enses,
,ave a#so re*ogni$ed t,e 1a*t t,at t,ere ma6 be su*, #egitimate intrusion o1 &riva*6
in t,e 2or3&#a*e.
+,e 1irst 1a*tor to *onsider in t,e matter o1 reasonab#eness is t,e nature o1
t,e &riva*6 interest u&on 2,i*, t,e drug testing, 2,i*, e11e*ts a sear*, 2it,in t,e
meaning o1 "e*. ., 'rt. ;;; o1 t,e %onstitution, intrudes. ;n t,is *ase, t,e o11i*e or
2or3&#a*e serves as t,e ba*3dro& 1or t,e ana#6sis o1 t,e &riva*6 eG&e*tation o1
t,e em&#o6ees and t,e reasonab#eness o1 drug testing reFuirement. T%e
e)(,'ee&I (r"*ac' "n#ere&# "n an $$"ce "& # a ,ar!e ex#en# c"rc+)&cr"-ed -'
#%e c)(an'I& /rE (,"c"e&, #%e c,,ec#"*e -ar!a"n"n! a!ree)en#, "$ an',
en#ered "n# -' )ana!e)en# and #%e -ar!a"n"n! +n"#, and #%e "n%eren# r"!%#
$ #%e e)(,'er # )a"n#a"n d"&c"(,"ne and e$$"c"enc' "n #%e /rE(,ace. +,eir
&riva*6 eG&e*tation in a regu#ated o11i*e environment is, in 1ine, redu*edH and a
degree o1 im&ingement u&on su*, &riva*6 ,as been u&,e#d. 8?m&,asis su&&#ied.9
'&ing t,e ana#6sis and &rin*i&#es announ*ed in ODConnor and Simons to
t,e *ase at bar, 2e no2 address t,e 1o##o2ing Fuestions: 819 Did &etitioner ,ave a
reasonab#e eG&e*tation o1 &riva*6 in ,is o11i*e and *om&uter 1i#esQH and 8.9 >as t,e
sear*, aut,ori$ed b6 t,e %"% %,air, t,e *o&6ing o1 t,e *ontents o1 t,e ,ard drive
on &etitionerAs *om&uter reasonab#e in its in*e&tion and s*o&eQ
;n t,is inFuir6, t,e re#evant surrounding *ir*umstan*es to *onsider in*#ude
K819 t,e em&#o6eeAs re#ations,i& to t,e item sei$edH 8.9 2,et,er t,e item 2as in t,e
immediate *ontro# o1 t,e em&#o6ee 2,en it 2as sei$edH and 839 2,et,er t,e
em&#o6ee too3 a*tions to maintain ,is &riva*6 in t,e item.L +,ese 1a*tors are
re#evant to bot, t,e sub)e*tive and ob)e*tive &rongs o1 t,e reasonab#eness inFuir6,
and 2e *onsider t,e t2o Fuestions toget,er.
A??B
+,us, 2,ere t,e em&#o6ee used a
&ass2ord on ,is *om&uter, did not s,are ,is o11i*e 2it, *o!2or3ers and 3e&t t,e
same #o*3ed, ,e ,ad a #egitimate eG&e*tation o1 &riva*6 and an6 sear*, o1 t,at
s&a*e and items #o*ated t,erein must *om 2it, t,e =ourt, 'mendment.
A?;B
>e ans2er t,e 1irst in t,e negative. Petitioner 1ai#ed to &rove t,at ,e ,ad an
a*tua# 8sub)e*tive9 eG&e*tation o1 &riva*6 eit,er in ,is o11i*e or government!issued
*om&uter 2,i*, *ontained ,is &ersona# 1i#es. Petitioner did not a##ege t,at ,e ,ad a
se&arate en*#osed o11i*e 2,i*, ,e did not s,are 2it, an6one, or t,at ,is o11i*e 2as
a#2a6s #o*3ed and not o&en to ot,er em&#o6ees or visitors. Neit,er did ,e a##ege
t,at ,e used &ass2ords or ado&ted an6 means to &revent ot,er em&#o6ees 1rom
a**essing ,is *om&uter 1i#es. @n t,e *ontrar6, ,e submits t,at being in t,e &ub#i*
assistan*e o11i*e o1 t,e %"%!R@;<, ,e norma##6 2ou#d ,ave visitors in ,is o11i*e
#i3e 1riends, asso*iates and even un3no2n &eo&#e, 2,om ,e even a##o2ed to use
,is *om&uter 2,i*, to ,im seemed a trivia# reFuest. :e des*ribed ,is o11i*e as
K1u## o1 &eo&#e, ,is 1riends, un3no2n &eo&#eL and t,at in t,e &ast .. 6ears ,e ,ad
been dis*,arging ,is 1un*tions at t,e P'7D, ,e is K&ersona##6 assisting in*oming
*#ients, re*eiving do*uments, dra1ting *ases on a&&ea#s, in *,arge o1
a**om&#is,ment re&ort, *amamayan *una Program, Pub#i* "e*tor Bnionism,
%orre*tion o1 name, a**reditation o1 servi*e, and ,ard#6 ,ad an6time 1or ,imse#1
a#one, t,at in 1a*t ,e sta6s in t,e o11i*e as a &a6ing *ustomer.L
A?>B
Bnder t,is
s*enario, it *an ,ard#6 be dedu*ed t,at &etitioner ,ad su*, eG&e*tation o1 &riva*6
t,at so*iet6 2ou#d re*ogni$e as reasonab#e.
(oreover, even assuming arguendo, in t,e absen*e o1 a##egation or &roo1 o1
t,e a1orementioned 1a*tua# *ir*umstan*es, t,at &etitioner ,ad at #east a sub)e*tive
eG&e*tation o1 &riva*6 in ,is *om&uter as ,e *#aims, su*, is negated b6 t,e
&resen*e o1 &o#i*6 regu#ating t,e use o1 o11i*e *om&uters, as in Simons.
@11i*e (emorandum No. 1/, ". .//. KComputer @se 9oli!y 5C@96L
eG&#i*it#6 &rovides:
POLICY
1. +,e Computer Resour!es are t,e &ro&ert6 o1 t,e %ivi# "ervi*e %ommission
and ma6 be used on#6 1or #egitimate business &ur&oses.
.. @sers s,a## be &ermitted a**ess to Computer Resour!es to assist t,em in t,e
&er1orman*e o1 t,eir res&e*tive )obs.
3. Bse o1 t,e Computer Resour!es is a &rivi#ege t,at ma6 be revo3ed at an6
given time.
G G G G
N Ex(ec#a#"n $ Pr"*ac'
0. %o e7pe!tation o priva!y. @sers eG*e&t t,e (embers o1 t,e %ommission
s,a## not ,ave an eG&e*tation o1 &riva*6 in an6t,ing t,e6 *reate, store, send,
or re*eive on t,e *om&uter s6stem.
+,e :ead o1 t,e @11i*e 1or Re*ruitment, ?Gamination and P#a*ement s,a##
se#e*t and assign @sers to ,and#e t,e *on1identia# eGamination data and
&ro*esses.
5. &aiver o priva!y rights. @sers eG&ress#6 2aive an6 rig,t to &riva*6
in an6t,ing t,e6 *reate, store, send, or re*eive on t,e *om&uter t,roug, t,e
;nternet or an6 ot,er *om&uter net2or3. @sers understand t,at t,e CSC
)a' +&e %+)an r a+#)a#ed )ean& # )n"#r #%e +&e $ "#& Coputer
)esources.
6. %on$e7!lusivity o Computer Resour!es. ' *om&uter resour*e is not a
&ersona# &ro&ert6 or 1or t,e eG*#usive use o1 a @ser to 2,om a
memorandum o1 re*ei&t 8(R9 ,as been issued. ;t *an be s,ared or o&erated
b6 ot,er users. :o2ever, ,e is a**ountab#e t,ere1or and must insure its *are
and maintenan*e.
G G G G
Pa&&/rd&
1.. Responsibility or passwords. @sers s,a## be res&onsib#e 1or sa1eguarding
t,eir &ass2ords 1or a**ess to t,e *om&uter s6stem. ;ndividua# &ass2ords
s,a## not be &rinted, stored on#ine, or given to ot,ers. @sers s,a## be
res&onsib#e 1or a## transa*tions made using t,eir &ass2ords.%o @ser may
a!!ess the !omputer system with another @serDs password or a!!ount.
13. 9asswords do not imply priva!y. Bse o1 &ass2ords to gain a**ess to t,e
*om&uter s6stem or to en*ode &arti*u#ar 1i#es or messages does not im
t,at @sers ,ave an eG&e*tation o1 &riva*6 in t,e materia# t,e6 *reate or
re*eive on t,e *om&uter s6stem. +,e %ivi# "ervi*e %ommission ,as g#oba#
&ass2ords t,at &ermit a**ess to a## materia#s stored on its net2or3ed
*om&uter s6stem regard#ess o1 2,et,er t,ose materia#s ,ave been en*oded
2it, a &arti*u#ar @serDs &ass2ord. @n#6 members o1 t,e %ommission s,a##
aut,ori$e t,e a&&#i*ation o1 t,e said g#oba# &ass2ords.
G G G G
A?<B
8?m&,asis su&&#ied.9
+,e %"% in t,is *ase ,ad im&#emented a &o#i*6 t,at &ut its em&#o6ees on
noti*e t,at t,e6 ,ave no eG&e*tation o1 &riva*6 inan'#%"n! t,e6 *reate, store, send
or re*eive on t,e o11i*e *om&uters, and t,at t,e %"% ma6 monitor t,e use o1 t,e
*om&uter resour*es using bot, automated or ,uman means. +,is im&#ies t,at on!
t,e!s&ot ins&e*tions ma6 be done to ensure t,at t,e *om&uter resour*es 2ere used
on#6 1or su*, #egitimate business &ur&oses.
@ne o1 t,e 1a*tors stated in ODConnor 2,i*, are re#evant in determining
2,et,er an em&#o6eeAs eG&e*tation o1 &riva*6 in t,e 2or3&#a*e is reasonab#e is t,e
eGisten*e o1 a 2or3&#a*e &riva*6 &o#i*6.
A?=B
;n one *ase, t,e B" %ourt o1 '&&ea#s
?ig,t, %ir*uit ,e#d t,at a state universit6 em&#o6ee ,as not s,o2n t,at ,e ,ad a
reasonab#e eG&e*tation o1 &riva*6 in ,is *om&uter 1i#es 2,ere t,e universit6As
*om&uter &o#i*6, t,e *om&uter user is in1ormed not to eG&e*t &riva*6 i1 t,e
universit6 ,as a #egitimate reason to *ondu*t a sear*,. +,e user is s&e*i1i*a##6 to#d
t,at *om&uter 1i#es, in*#uding e!mai#, *an be sear*,ed 2,en t,e universit6 is
res&onding to a dis*over6 reFuest in t,e *ourse o1 #itigation. Petitioner em&#o6ee
t,us *annot *#aim a vio#ation o1 =ourt, 'mendment rig,ts 2,en universit6 o11i*ia#s
*ondu*ted a 2arrant#ess sear*, o1 ,is *om&uter 1or 2or3!re#ated materia#s.
A?CB
's to t,e se*ond &oint o1 inFuir6 on t,e reasonab#eness o1 t,e sear*,
*ondu*ted on &etitionerAs *om&uter, 2e ans2er in t,e a11irmative.
+,e sear*, o1 &etitionerAs *om&uter 1i#es 2as *ondu*ted in *onne*tion 2it,
investigation o1 2or3!re#ated mis*ondu*t &rom&ted b6 an anon6mous #etter!
*om&#aint addressed to %,air&erson David regarding anoma#ies in t,e %"%!R@;<
2,ere t,e ,ead o1 t,e *amamayan *una 1indi *amaya %a division is
su&&osed#6 K#a26eringL 1or individua#s 2it, &ending *ases in t,e
%"%. %,air&erson David stated in ,er s2orn a11idavit:
8. +,at &rior to t,is, as ear#6 as .//6, t,e undersigned ,as re*eived severa#
teGt messages 1rom un3no2n sour*es adverting to *ertain anoma#ies in %ivi#
"ervi*e %ommission Regiona# @11i*e ;< 8%"%R@ ;<9 su*, as, sta11
2or3ing in anot,er government agen*6, Kse##ingL *ases and aiding &arties
2it, &ending *ases, a## done during o11i*e ,ours and invo#ved t,e use o1
government &ro&ertiesH
9. +,at said teGt messages 2ere not investigated 1or #a*3 o1 an6 veri1iab#e
#eads and detai#s su11i*ient to 2arrant an investigationH
1/. +,at t,e anon6mous #etter &rovided t,e #ead and detai#s as it &in&ointed t,e
&ersons and divisions invo#ved in t,e a##eged irregu#arities ,a&&ening in
%"%R@ ;<H
11. +,at in vie2 o1 t,e seriousness o1 t,e a##egations o1 irregu#arities ,a&&ening
in %"%R@ ;< and its e11e*t on t,e integrit6 o1 t,e %ommission, ; de*ided to
1orm a team o1 %entra# @11i*e sta11 to ba*3 u& t,e 1i#es in t,e *om&uters o1
t,e Pub#i* 'ssistan*e and 7iaison Division 8P'7D9 and 7ega# DivisionH
G G G G
A;2B
' sear*, b6 a government em&#o6er o1 an em&#o6eeAs o11i*e is )usti1ied at
in*e&tion 2,en t,ere are reasonab#e grounds 1or sus&e*ting t,at it 2i## turn u&
eviden*e t,at t,e em&#o6ee is gui#t6 o1 2or3!re#ated mis*ondu*t.
A;:B
+,us, in t,e
.//0 *ase de*ided b6 t,e B" %ourt o1 '&&ea#s ?ig,t, %ir*uit, it 2as ,e#d t,at
2,ere a government agen*6As *om&uter use &o#i*6 &ro,ibited e#e*troni* messages
2it, &ornogra&,i* *ontent and in addition eG&ress#6 &rovided t,at em&#o6ees do
not have any personal priva!y rights regarding their use o the agen!y inormation
systems and te!hnology, t,e government em&#o6ee ,ad no #egitimate eG&e*tation
o1 &riva*6 as to t,e use and *ontents o1 ,is o11i*e *om&uter, and t,ere1ore eviden*e
1ound during 2arrant#ess sear*, o1 t,e *om&uter 2as admissib#e in &rose*ution 1or
*,i#d &ornogra&,6. ;n t,at *ase, t,e de1endant em&#o6eeAs *om&uter ,ard drive
2as 1irst remote#6 eGamined b6 a *om&uter in1ormation te*,ni*ian a1ter ,is
su&ervisor re*eived *om&#aints t,at ,e 2as ina**essib#e and ,ad *o&ied and
distributed non!2or3!re#ated e!mai# messages t,roug,out t,e o11i*e. >,en t,e
su&ervisor *on1irmed t,at de1endant ,ad used ,is *om&uter to a**ess t,e &ro,ibited
2ebsites, in *ontravention o1 t,e eG&ress &o#i*6 o1 t,e agen*6, ,is *om&uter to2er
and 1#o&&6 dis3s 2ere ta3en and eGamined. ' 1orma# administrative investigation
ensued and #ater sear*, 2arrants 2ere se*ured b6 t,e &o#i*e de&artment. +,e
initia# remote sear*, o1 t,e ,ard drive o1 &etitionerAs *om&uter, as 2e## as t,e
subseFuent 2arrant#ess sear*,es 2as ,e#d as va#id under t,e ODConnor ru#ing t,at
a &ub#i* em&#o6er *an investigate 2or3!re#ated mis*ondu*t so #ong as an6 sear*, is
)usti1ied at in*e&tion and is reasonab#6 re#ated in s*o&e to t,e *ir*umstan*es t,at
)usti1ied it in t,e 1irst &#a*e.
A;6B
Bnder t,e 1a*ts obtaining, t,e sear*, *ondu*ted on &etitionerAs *om&uter 2as
)usti1ied at its in*e&tion and s*o&e. >e Fuote 2it, a&&rova# t,e %"%As dis*ussion
on t,e reasonab#eness o1 its a*tions, *onsistent as it 2ere 2it, t,e guide#ines
estab#is,ed b6ODConnor:
?ven *on*eding 1or a moment t,at t,ere is no su*, administrative &o#i*6,
t,ere is no doubt in t,e mind o1 t,e %ommission t,at t,e sear*, o1 Po##oAs
*om&uter ,as su**ess1u##6 &assed t,e test o1 reasonab#eness 1or 2arrant#ess
sear*,es in t,e 2or3&#a*e as enun*iated in t,e above!dis*ussed 'meri*an
aut,orities. ;t bears em&,asis #%a# #%e C))"&&"n (+r&+ed #%e &earc% "n "#&
ca(ac"#' a& a !*ern)en# e)(,'er and #%a# "# /a& +nder#aEen "n cnnec#"n
/"#% an "n*e&#"!a#"n "n*,*"n! a /rE-re,a#ed )"&cnd+c#, one o1 t,e
*ir*umstan*es eGem&ted 1rom t,e 2arrant reFuirement. 't t,e in*e&tion o1 t,e
sear*,, a *om&#aint 2as re*eived re*ounting t,at a *ertain division *,ie1 in t,e
%"%R@ No. ;< 2as K#a26eringL 1or &arties ,aving &ending *ases 2it, t,e said
regiona# o11i*e or in t,e %ommission. T%e na#+re $ #%e ")(+#a#"n /a&
&er"+&, a& "# /a& !r"e*+&,' d"&#+r-"n!. ;1, indeed, a %"% em&#o6ee 2as 1ound
to be 1urtive#6 engaged in t,e &ra*ti*e o1 K#a26eringL 1or &arties 2it, &ending
*ases be1ore t,e %ommission 2ou#d be a ,ig,#6 re&ugnant s*enario, t,en su*, a
*ase 2ou#d ,ave s,attering re&er*ussions. ;t 2ou#d undeniab#6 *ast *#ouds o1
doubt u&on t,e institutiona# integrit6 o1 t,e %ommission as a Fuasi!)udi*ia#
agen*6, and in t,e &ro*ess, render it #ess e11e*tive in 1u#1i##ing its mandate as an
im&artia# and ob)e*tive dis&enser o1 administrative )usti*e. ;t is sett#ed t,at a
*ourt or an administrative tribuna# must not on#6 be a*tua##6 im&artia# but must be
seen to be so, ot,er2ise t,e genera# &ub#i* 2ou#d not ,ave an6 trust and
*on1iden*e in it.
Cn&"der"n! #%e da)a!"n! na#+re $ #%e acc+&a#"n, #%e C))"&&"n
%ad # ac# $a&#, i1 on#6 to arrest or #imit an6 &ossib#e adverse *onseFuen*e or 1a##!
out. +,us, on t,e same date t,at t,e *om&#aint 2as re*eived, a sear*, 2as
1ort,2it, *ondu*ted invo#ving t,e *om&uter resour*es in t,e *on*erned regiona#
o11i*e. T%a# "# /a& #%e c)(+#er& #%a# /ere &+-0ec#ed # #%e &earc% /a&
0+&#"$"ed &"nce #%e&e $+rn"&%ed #%e ea&"e&# )ean& $r an e)(,'ee # encde
and &#re dc+)en#&. Indeed, #%e c)(+#er& /+,d -e a ,"Ee,' &#ar#"n! ("n#
"n $erre#"n! +# "ncr")"na#"n! e*"dence. Cnc)"#an#,', #%e e(%e)era, na#+re
$ c)(+#er $",e&, #%a# "&, #%e' c+,d ea&",' -e de&#r'ed a# a c,"cE $ a -+##n,
nece&&"#a#ed dra&#"c and "))ed"a#e ac#"n. Pointed#6, to im&ose t,e need to
*om 2it, t,e &robab#e *ause reFuirement 2ou#d invariab#6 de1eat t,e &ur&ose
o1 t,e 2o3!re#ated investigation.
>ort,6 to mention, too, is t,e 1a*t t,at t,e %ommission e11e*ted t,e
2arrant#ess sear*, in an o&en and trans&arent manner. @11i*ia#s and some
em&#o6ees o1 t,e regiona# o11i*e, 2,o ,a&&ened to be in t,e vi*init6, 2ere on
,and to observe t,e &ro*ess unti# its *om&#etion. ;n addition, t,e res&ondent
,imse#1 2as du#6 noti1ied, t,roug, teGt messaging, o1 t,e sear*, and t,e
*on*omitant retrieva# o1 1i#es 1rom ,is *om&uter.
'## in a##, t,e %ommission is *onvin*ed t,at t,e 2arrant#ess sear*, done
on *om&uter assigned to Po##o 2as not, in an6 2a6, vitiated 2it,
un*onstitutiona#it6. ;t 2as a reasonab#e eGer*ise o1 t,e manageria# &rerogative o1
t,e %ommission as an em&#o6er aimed at ensuring its o&erationa# e11e*tiveness
and e11i*ien*6 b6 going a1ter t,e 2or3!re#ated mis1easan*e o1 its
em&#o6ees. %onseFuent#6, t,e eviden*e derived 1rom t,e Fuestioned sear*, are
deemed admissib#e.
A;1B
PetitionerAs *#aim o1 vio#ation o1 ,is *onstitutiona# rig,t to &riva*6 must
ne*essari#6 1ai#. :is ot,er argument invo3ing t,e &riva*6 o1 *ommuni*ation and
*orres&onden*e under "e*tion 3819, 'rti*#e ;;; o1 t,e 198- %onstitution is a#so
untenab#e *onsidering t,e re*ognition a**orded to *ertain #egitimate intrusions into
t,e &riva*6 o1 em&#o6ees in t,e government 2or3&#a*e under t,e a1ore*ited
aut,orities. >e #i3e2ise 1ind no merit in ,is *ontention
t,at ODConnor and Simons are not re#evant be*ause t,e &resent *ase does not
invo#ve a *rimina# o11ense #i3e *,i#d &ornogra&,6. 's a#read6 mentioned, t,e
sear*, o1 &etitionerAs *om&uter 2as )usti1ied t,ere being reasonab#e ground 1or
sus&e*ting t,at t,e 1i#es stored t,erein 2ou#d 6ie#d in*riminating eviden*e re#evant
to t,e investigation being *ondu*ted b6 %"% as government em&#o6er o1 su*,
mis*ondu*t sub)e*t o1 t,e anon6mous *om&#aint. +,is situation *#ear#6 1a##s under
t,e eG*e&tion to t,e 2arrant#ess reFuirement in administrative sear*,es de1ined
in ODConnor.
+,e %ourt is not una2are o1 our de*ision in ;nonymous Letter$Complaint
against ;tty. *iguel *orales) Clerk o Court) *etropolitan -rial Court o
*anila
A;?B
invo#ving a bran*, *#er3 8'tt6. (ora#es9 2,o 2as investigated on t,e
basis o1 an anon6mous #etter a##eging t,at ,e 2as *onsuming ,is 2or3ing ,ours
1i#ing and attending to &ersona# *ases, using o11i*e su&&#ies, eFui&ment and
uti#ities. +,e @%' *ondu*ted a s&ot investigation aided b6 NI; agents. +,e team
2as ab#e to a**ess 'tt6. (ora#esA &ersona# *om&uter and &rint t2o do*uments
stored in its ,ard drive, 2,i*, turned out to be t2o &#eadings, one 1i#ed in t,e %'
and anot,er in t,e R+% o1 (ani#a, bot, in t,e name o1 anot,er #a26er. 'tt6.
(ora#esA *om&uter 2as sei$ed and ta3en in *ustod6 o1 t,e @%' but 2as #ater
ordered re#eased on ,is motion, but 2it, order to t,e (;"@ to 1irst retrieve t,e 1i#es
stored t,erein. +,e @%' disagreed 2it, t,e re&ort o1 t,e ;nvestigating Judge t,at
t,ere 2as no eviden*e to su&&ort t,e *,arge against 'tt6. (ora#es as no one 1rom
t,e @%% &ersonne# 2,o 2ere intervie2ed 2ou#d give a *ategori*a# and &ositive
statement a11irming t,e *,arges against 'tt6. (ora#es, a#ong 2it, ot,er *ourt
&ersonne# a#so *,arged in t,e same *ase. +,e @%' re*ommended t,at 'tt6.
(ora#es s,ou#d be 1ound gui#t6 o1 gross mis*ondu*t. +,e %ourt ?n 2an! ,e#d t,at
2,i#e 'tt6. (ora#es ma6 ,ave 1a##en s,ort o1 t,e eGa*ting standards reFuired o1
ever6 *ourt em&#o6ee, t,e %ourt *annot use t,e eviden*e obtained 1rom
,is personal *om&uter against ,im 1or it vio#ated ,is *onstitutiona# rig,t against
unreasonab#e sear*,es and sei$ures. +,e %ourt 1ound no eviden*e to su&&ort t,e
*#aim o1 @%' t,at t,e6 2ere ab#e to obtain t,e sub)e*t &#eadings 2it, t,e *onsent
o1 'tt6. (ora#es, as in 1a*t t,e #atter immediate#6 1i#ed an administrative *ase
against t,e &ersons 2,o *ondu*ted t,e s&ot investigation, Fuestioning t,e va#idit6
o1 t,e investigation and s&e*i1i*a##6 invo3ing ,is *onstitutiona# rig,t against
unreasonab#e sear*, and sei$ure. 'nd as t,ere is no ot,er eviden*e, a&art 1rom t,e
&#eadings, retrieved 1rom t,e undu#6 *on1is*ated &ersona# *om&uter o1 'tt6.
(ora#es, to ,o#d ,im administrative#6 #iab#e, t,e %ourt ,ad no *,oi*e but to
dismiss t,e *,arges against ,im 1or insu11i*ien*6 o1 eviden*e.
+,e above *ase is to be distinguis,ed 1rom t,e *ase at bar be*ause, un#i3e
t,e 1ormer 2,i*, invo#ved a personal *om&uter o1 a *ourt em&#o6ee, t,e *om&uter
1rom 2,i*, t,e &ersona# 1i#es o1 ,erein &etitioner 2ere retrieved is a government!
issued *om&uter, ,en*e government &ro&ert6 t,e use o1 2,i*, t,e %"% ,as
abso#ute rig,t to regu#ate and monitor. "u*, re#ations,i& o1 t,e &etitioner 2it, t,e
item sei$ed 8o11i*e *om&uter9 and ot,er re#evant 1a*tors and *ir*umstan*es under
'meri*an =ourt, 'mendment )uris&ruden*e, notab#6 t,e eGisten*e o1 %"% (@ 1/,
". .//- on %om&uter Bse Po#i*6, 1ai#ed to estab#is, t,at &etitioner ,ad a reasonab#e
eG&e*tation o1 &riva*6 in t,e o11i*e *om&uter assigned to ,im.
:aving determined t,at t,e &ersona# 1i#es *o&ied 1rom t,e o11i*e *om&uter o1
&etitioner are admissib#e in t,e administrative *ase against ,im, 2e no2 &ro*eed to
t,e issue o1 2,et,er t,e %"% 2as *orre*t in 1inding t,e &etitioner gui#t6 o1 t,e
*,arges and dismissing ,im 1rom t,e servi*e.
>e##!sett#ed is t,e ru#e t,at t,e 1indings o1 1a*t o1 Fuasi!)udi*ia# agen*ies,
#i3e t,e %"%, are a**orded not on#6 res&e*t but even 1ina#it6 i1 su*, 1indings are
su&&orted b6 substantia# eviden*e. "ubstantia# eviden*e is su*, amount o1 re#evant
eviden*e 2,i*, a reasonab#e mind mig,t a**e&t as adeFuate to su&&ort a
*on*#usion, even i1 ot,er eFua##6 reasonab#e minds mig,t *on*eivab#6 o&ine
ot,er2ise.
A;;B
+,e %"% based its 1indings on eviden*e *onsisting o1 a substantia# number
o1 dra1ts o1 #ega# &#eadings and do*uments stored in ,is o11i*e *om&uter, as 2e## as
t,e s2orn a11idavits and testimonies o1 t,e 2itnesses it &resented during t,e 1orma#
investigation. '**ording to t,e %"%, t,ese do*uments 2ere *on1irmed to be
simi#ar or eGa*t#6 t,e same *ontent!2ise 2it, t,ose on t,e *ase re*ords o1 some
*ases &ending eit,er 2it, %"%R@ No. ;<, %"%!N%R or t,e %ommission Pro&er.
+,ere 2ere a#so substantia##6 simi#ar *o&ies o1 t,ose &#eadings 1i#ed 2it, t,e %'
and du#6 1urnis,ed t,e %ommission. =urt,er, t,e %"% 1ound t,e eG&#anation
given b6 &etitioner, to t,e e11e*t t,at t,ose 1i#es retrieved 1rom ,is *om&uter ,ard
drive a*tua##6 be#onged to ,is #a26er 1riends ?stre##ado and "o#osa 2,om ,e
a##o2ed t,e use o1 ,is *om&uter 1or dra1ting t,eir &#eadings in t,e *ases t,e6
,and#e, as im&#ausib#e and doubt1u# under t,e *ir*umstan*es. >e ,o#d t,at
t,e %"%As 1a*tua# 1inding regarding t,e aut,ors,i& o1 t,e sub)e*t &#eadings and
misuse o1 t,e o11i*e *om&uter is 2e##!su&&orted b6 t,e eviden*e on re*ord, t,us:
;t is a#so stri3ing to note t,at some o1 t,ese do*uments 2ere in t,e nature
o1 &#eadings res&onding to t,e orders, de*isions or reso#utions o1 t,ese o11i*es or
dire*t#6 in o&&osition to t,em su*, as a &etition 1or *ertiorari or a motion 1or
re*onsideration o1 %"% Reso#ution. +,is indi*ates t,at t,e aut,or t,ereo1
3no2ing#6 and 2i##ing#6 &arti*i&ated in t,e &romotion or advan*ement o1 t,e
interests o1 &arties *ontrar6 or antagonisti* to t,e %ommission. >orse, t,e
a&&earan*e in one o1 t,e retrieved do*uments t,e &,rase, ?ri! %. ?str3e4llado)
?pal kulang ang bayad mo) #ends &#ausibi#it6 to an in1eren*e t,at t,e &re&aration
or dra1ting o1 t,e #ega# &#eadings 2as &ursued 2it, #ess t,an a #audab#e
motivation. >,oever 2as res&onsib#e 1or t,ese do*uments 2as sim doing t,e
same 1or t,e mone6 J a Klegal mer!enaryL se##ing or &urve6ing ,is eG&ertise to
t,e ,ig,est bidder, so to s&ea3.
;nevitab#6, #%e $ac# #%a# #%e&e dc+)en#& /ere re#r"e*ed $r) #%e
c)(+#er $ P,, ra"&e& #%e (re&+)(#"n #%a# %e /a& #%e a+#%r
#%ere$. T%"& "& -eca+&e %e %ad a cn#r, $ #%e &a"d c)(+#er. (ore
signi1i*ant#6, one o1 t,e 2itnesses, (argarita Re6es, *ategori*a##6 testi1ied seeing
a 2ritten *o&6 o1 one o1 t,e &#eadings 1ound in t,e *ase re*ords #6ing on t,e tab#e
o1 t,e res&ondent. +,is 2as t,e Petition 1or Revie2 in t,e *ase o1 ?stre##ado
addressed to t,e %ourt o1 '&&ea#s. +,e said *ir*umstan*es indubitab#6
demonstrate t,at Po##o 2as se*ret#6 undermining t,e interest o1 t,e %ommission,
,is ver6 o2n em&#o6er.
+o de1#e*t an6 *u#&abi#it6, Po##o 2ou#d, ,o2ever, 2ant t,e %ommission to
be#ieve t,at t,e do*uments 2ere t,e &ersona# 1i#es o1 some o1 ,is 1riends,
in*#uding one 'ttorne6 Pon*iano "o#osa, 2,o in*identa##6 served as ,is *ounse#
o1 re*ord during t,e 1orma# investigation o1 t,is *ase. ;n 1a*t, 'tt6. "o#osa ,imse#1
eGe*uted a s2orn a11idavit to t,is e11e*t. Bn1ortunate#6, t,is *ontention o1 t,e
res&ondent 2as dire*t#6 rebutted b6 t,e &rose*ution 2itness, Re6es, 2,o testi1ied
t,at during ,er entire sta6 in t,e P'7D, s,e never sa2 'tt6. "o#osa using t,e
*om&uter assigned to t,e res&ondent. Re6es more &arti*u#ar#6 stated t,at s,e
2or3ed in *#ose &roGimit6 2it, Po##o and 2ou#d ,ave 3no2n i1 'tt6. "o#osa,
2,om s,e &ersona##6 3no2s, 2as using t,e *om&uter in Fuestion. =urt,er, 'tt6.
"o#osa ,imse#1 2as never &resented during t,e 1orma# investigation to *on1irm ,is
s2orn statement su*, t,at t,e same *onstitutes se#1!serving eviden*e un2ort,6 o1
2eig,t and *reden*e. +,e same is true 2it, t,e ot,er su&&orting a11idavits, 2,i*,
Po##o submitted.
't an6 rate, even admitting 1or a moment t,e said *ontention o1 t,e
res&ondent, it evin*es t,e 1a*t t,at ,e 2as un#a21u##6 aut,ori$ing &rivate &ersons
to use t,e *om&uter assigned to ,im 1or o11i*ia# &ur&ose, not on#6 on*e but severa#
times gauging b6 t,e number o1 &#eadings, 1or ends not in *on1ormit6 2it, t,e
interests o1 t,e %ommission. :e 2as, in e11e*t, a*ting as a &rin*i&a# b6
indis&ensab#e *oo&erationM@r at t,e ver6 #east, ,e s,ou#d be res&onsib#e 1or
serious mis*ondu*t 1or re&eated#6 a##o2ing %"% resour*es, t,at is, t,e *om&uter
and t,e e#e*tri*it6, to be uti#i$ed 1or &ur&oses ot,er t,an 2,at t,e6 2ere o11i*ia##6
intended.
=urt,er, t,e %ommission *annot #end *reden*e to t,e &osturing o1 t,e
a&&e##ant t,at t,e #ine a&&earing in one o1 t,e do*uments, ?ri! %. ?strellado)
?pal kulang ang bayad mo,L 2as a &rivate )o3e bet2een t,e &erson a##uded to
t,erein, ?ri* N. ?stre##ado, and ,is *ounse#, 'tt6. "o#osa, and not indi*ative o1
an6t,ing more sinister. +,e same is too &re&osterous to be be#ieved. >,6 2ou#d
su*, a statement a&&ear in a #ega# &#eading stored in t,e *om&uter assigned to t,e
res&ondent, un#ess ,e ,ad somet,ing to do 2it, itQ
A;>B
Petitioner assai#s t,e %' in not ru#ing t,at t,e %"% s,ou#d not ,ave
entertained an anon6mous *om&#aint sin*e "e*tion 8 o1 %"% Reso#ution No. 99!
1936 8BR'%%9 reFuires a veri1ied *om&#aint:
Rule II H :is!iplinary Cases
"?%. 8. Complaint. ! ' *om&#aint against a *ivi# servi*e o11i*ia# or
em&#o6ee s,a## not be given due *ourse un#ess it is in 2riting and subs*ribed and
s2orn to b6 t,e *om&#ainant. :o2ever, "n ca&e& "n"#"a#ed -' #%e (r(er
d"&c"(,"n"n! a+#%r"#', t,e *om&#aint need not be under oat,.
No anon6mous *om&#aint s,a## be entertained un#ess #%ere "& -*"+&
#r+#% r )er"# # #%e a,,e!a#"n #%ere"n or su&&orted b6 do*umentar6 or dire*t
eviden*e, in 2,i*, *ase t,e &erson *om&#ained o1 ma6 be reFuired to *omment.
G G G G
>e need not be#abor t,is &oint raised b6 &etitioner. +,e administrative
*om&#aint is deemed to ,ave been initiated b6 t,e %"% itse#1 2,en %,air&erson
David, a1ter a s&ot ins&e*tion and sear*, o1 t,e 1i#es stored in t,e ,ard drive o1
*om&uters in t,e t2o divisions adverted to in t,e anon6mous #etter !! as &art o1 t,e
dis*i&#ining aut,orit6As o2n 1a*t!1inding investigation and in1ormation!gat,ering !!
1ound a prima a!ie *ase against t,e &etitioner 2,o 2as t,en dire*ted to 1i#e ,is
*omment. 's t,is %ourt ,e#d in Civil Servi!e Commission v. Court o
;ppeals
A;<B
!!
Bnder "e*tions 06 and 08 819, %,a&ter 6, "ubtit#e ', Ioo3 < o1 ?.@. No.
.9. and "e*tion 8, Ru#e ;; o1 Bni1orm Ru#es on 'dministrative %ases in t,e %ivi#
"ervi*e, a c)(,a"n# )a' -e "n"#"a#ed a!a"n&# a c"*", &er*"ce $$"cer r
e)(,'ee -' #%e a((r(r"a#e d"&c"(,"n"n! a+#%r"#', e*en /"#%+# -e"n!
&+-&cr"-ed and &/rn #. %onsidering t,at t,e %"%, as t,e dis*i&#ining aut,orit6
1or Dum#ao, 1i#ed t,e *om&#aint, )urisdi*tion over Dum#ao 2as va#id#6 a*Fuired.
8?m&,asis su&&#ied.9
's to &etitionerAs *,a##enge on t,e va#idit6 o1 %"% @( 1/, ". .//. 8%BP9,
t,e same deserves s*ant *onsideration. +,e a##eged in1irmit6 due to t,e said
memorandum order ,aving been issued so#e#6 b6 t,e %"% %,air and not t,e
%ommission as a *o##egia# bod6, u&on 2,i*, t,e dissent o1 %ommissioner
Iuena1#or is &art#6 an*,ored, 2as a#read6 eG&#ained b6 %,air&erson David in ,er
Re to t,e 'ddendum to %ommissioner Iuena1#orAs &revious memo eG&ressing
,is dissent to t,e a*tions and dis&osition o1 t,e %ommission in t,is
*ase. '**ording to %,air&erson David, said memorandum order 2as in 1a*t
eG,austive#6 dis*ussed, &rovision b6 &rovision in t,e Januar6 .3,
.//. %ommission (eeting, attended b6 ,er and 1ormer %ommissioners ?restain,
Jr. and <a#mores. :en*e, t,e %ommission ?n 2an! at t,e time sa2 no need to
issue a Reso#ution 1or t,e &ur&ose and 1urt,er be*ause t,e %BP being 1or interna#
use o1 t,e %ommission, t,e &ra*ti*e ,ad been to issue a memorandum order.
A;=B
(oreover, being an administrative ru#e t,at is mere#6 interna# in nature, or
2,i*, regu#ates on#6 t,e &ersonne# o1 t,e %"% and not t,e &ub#i*, t,e %BP need
not be &ub#is,ed &rior to its e11e*tivit6.
A;CB
;n 1ine, no error or grave abuse o1 dis*retion 2as *ommitted b6 t,e %' in
a11irming t,e %"%As ru#ing t,at &etitioner is gui#t6 o1 grave mis*ondu*t, dis,onest6,
*ondu*t &re)udi*ia# to t,e best interest o1 t,e servi*e, and vio#ation o1 R.'. No.
6-13. +,e gravit6 o1 t,ese o11enses )usti1ied t,e im&osition on &etitioner o1 t,e
u#timate &ena#t6 o1 dismissa# 2it, a## its a**essor6 &ena#ties, &ursuant to eGisting
ru#es and regu#ations.
3HERE4ORE, t,e &etition 1or revie2 on *ertiorari is 5ENIE5.
+,e De*ision
dated @*tober 11, .//- and Reso#utiondated =ebruar6 .9, .//8 o1
t,e %ourt o1 '&&ea#s in %'!G.R. "P No. 98..0 are A44IRME5.
>it, *osts against t,e &etitioner.
SO OR5ERE5.
MARTIN S. VILLARAMA, JR.
'sso*iate Justi*e
>? %@N%BR:
RENATO C. CORONA
%,ie1 Justi*e
See Se(ara#e Cnc+rr"n! O("n"n
ANTONIO T. CARPIO
'sso*iate Justi*e
I 0"n ("n"n $ J. Ber&a)"n
PRESBITERO J. VELASCO, JR.
'sso*iate Justi*e
I 0"n #%e cnc+rr"n! and d"&&en#"n! ("n"n $
J+&#"ce Ber&a)"n
TERESITA J. LEONAR5O-5E CASTRO
'sso*iate Justi*e
ART7RO 5. BRION
'sso*iate Justi*e
5IOS5A5O M. PERALTA
'sso*iate Justi*e
P,ea&e &ee Cnc+rr"n! L 5"&&en#"n!
O("n"n
L7CAS P. BERSAMIN
'sso*iate Justi*e
(N Par#)
MARIANO C. 5EL CASTILLO
'sso*iate Justi*e
I 0"n J+&#"ce L. Ber&a)"nI&
cnc+rr"n! and d"&&en#"n! ("n"n
ROBERTO A. ABA5
'sso*iate Justi*e
JOSE PORT7GAL PERED JOSE CATRAL MEN5ODA
'sso*iate Justi*e 'sso*iate Justi*e
I cnc+r -+# &%are J. Car("I& cncern&
MARIA LO7R5ES P. A. SERENO
'sso*iate Justi*e
BIENVENI5O L. REYES
'sso*iate Justi*e
ESTELA M. PERLAS-BERNABE
'sso*iate Justi*e
C E R T I 4 I C A T I O N
Pursuant to "e*tion 13, 'rti*#e <;;; o1 t,e 198- %onstitution, ; *erti16 t,at
t,e *on*#usions in t,e above De*ision ,ad been rea*,ed in *onsu#tation be1ore t,e
*ase 2as assigned to t,e 2riter o1 t,e o&inion o1 t,e %ourt.
RENATO C. CORONA
%,ie1 Justi*e
No &art.
415
Rollo) &&. 63!83. Penned b6 'sso*iate Justi*e Romeo =. Iar$a, 2it, 'sso*iate Justi*es (ariano %. De#
%asti##o 8no2 a (ember o1 t,is %ourt9 and 'r*ange#ita (. Romi##a!7onto3 *on*urring.
4.5
;d. at 85.
435
;d. at 3/6.
405
;d. at 3/5.
455
%' rollo) &. 56.
465
;d.
4-5
;d. at .1!.0.
485
;d. at ./!.5.
495
;d. at .5.
41/5
;d. at 55!6..
4115
;d. at .6!33. %,air&erson Narina %onstantino!David and %ommissioner (ar6 'nn R. =ernande$!(endo$a
*on*urred in ru#ing t,at a prima a!ie *ase eGisted against &etitioner 2,i#e %ommissioner %esar D. Iuena1#or
dissented 4see (emorandum 8@%@(!% (emo No. 10, s. .//-, %' rollo, &&. 031!0309.
41.5
%"% re*ords, &&. -1!# to -1!n. %,air&erson Narina %onstantino!David and %ommissioner (ar6 'nn R.
=ernande$!(endo$a *on*urred in t,e denia# o1 t,e omnibus motion 2,i#e %ommissioner %esar D. Iuena1#or
reiterated ,is dissent.
4135
%' rollo, &&. .!19.
4105
;d. at .88!.90, 3.1!3.5.
4155
;d. at 336!30/.
4165
;d. at 3-3.
41-5
;d. at 3-6!3-8.
4185
;d. at 388!39..
4195
;d. at 05-!063. %,air&erson Narina %onstantino!David and %ommissioner (ar6 'nn R. =ernande$!(endo$a
*on*urred in den6ing t,e motion 2,i#e %ommissioner %esar D. Iuena1#or dissented stating t,at based on ,is
dissenting &osition, an6 subseFuent &ro*eedings in t,is *ase is o1 no moment sin*e t,e initiator6 &ro*eedings
2as in vio#ation o1 a &ersonAs 1undamenta# rig,ts ens,rined in t,e Ii## o1 Rig,ts o1 t,e %onstitution. 8;d. at 065.9
4./5
;d. at 586!618. %,air&erson Narina %onstantino!David and %ommissioner (ar6 'nn R. =ernande$!(endo$a
*on*urred in ru#ing t,at &etitioner is gui#t6 as *,arged 2,i#e %ommissioner %esar D. Iuena1#or maintained ,is
dissent.
4.15
;d. at 618.
4..5
08/ B.". -/9 8198-9.
4.35
./6 =.3d 39. 80
t,
%ir. .///9.
4.05
;d. at 56/!585.
4.55
;d. at -/-!-19. %,air&erson Narina %onstantino!David and %ommissioner (ar6 'nn R. =ernande$!(endo$a
*on*urred in t,e denia# o1 t,e motion 1or re*onsideration 2,i#e %ommissioner %esar D. Iuena1#or reiterated ,is
dissent under ,is K'ddendum to t,e Dissenting Position Bnder @%@(!% (emo No. 10, ". .//-L. 8;d. at -./.9
4.65
Rollo) &. 19.
4.-5
So!ial Justi!e So!iety 5SJS6 v. :angerous :rugs 2oard, G.R. Nos. 15-8-/, 158633 and 161658, November 3,
.//8, 5-/ "%R' 01/, 0.-, *iting Ople v. -orres) G.R. No. 1.-685, Ju#6 .3, 1998, .93 "%R' 101, 169.
4.85
JoaFuin Iernas, ".J., +:? %@N"+;+B+;@N @= +:? R?PBI7;% @= +:? P:;7;PP;N?": '
%@((?N+'R, .//3 ed., &. 16..
4.95
G.R. No. 81561, Januar6 18, 1991, 193 "%R' 5-.
43/5
;d. at 63.
4315
389 B.". 03- 8196-9.
43.5
;d.
4335
39. B.". 360, 88 ".%t. .1./, ./ 7.?d.d 1150 819689.
4305
"u&ra note ...
4355
;d. at -1-.
4365
City o Ontario) Cal. v. >uon) 13/ ".%t. .619, B.". ./1/, June 1-, ./1/.
43-5
"u&ra note .. at -1-!-18.
4385
;d. at -18!-19.
4395
;d. at -19, -..!-.5.
40/5
/ran!is v. +ia!omelli) 588 =.3d 186, %.'. 8(d9, De*ember ., .//9.
4015
"u&ra note .3.
40.5
;d.
4035
"u&ra note .- at 03.!033.
4005
@.S. v. 2arrows) 081 =.3d 1.06, %.'.1/ 8@3#a.9, '&ri# 3, .//-, *iting @nited States v. ;nderson) 150 =.3d 1..5,
1..9 81/
t,
%ir. 19989.
4055
@.S. v. Iiegler) 0-0 =.3d 1180 %.'.9 8(ont.9, Januar6 3/, .//-.
4065
%' rollo) &&. 0., 61.
40-5
;d. at 00/!003.
4085
2iby v. 2oard o Regents) o the @niversity o %ebraska at Lin!oln) 019 =.3d 805 %.'.8 8Neb9, 'ugust ..,
.//5.
4095
;d.
45/5
%' rollo, &. 639.
4515
@.S. v. -horn) 3-5 =.3d 6-9, %.'.8 8(o.9, Ju#6 13, .//0.
45.5
;d.
4535
%' rollo) &&. 611!61..
4505
'.(. Nos. P!/8!.519 and P!/8!.5./, November 19, .//8, 5-1 "%R' 361.
4555
,ertudes v. 2uenalor) G.R. No. 153166, De*ember 16, .//5, 0-8 "%R' .1/, .3/, *iting Rosario v. ,i!tory
Ri!emill) G.R. No. 10-5-., =ebruar6 19, .//3, 39- "%R' -6/, -66 and2agong 2ayan Corp.) Realty Investors
and :evelopers v. %LRC) G.R. No. 61.-., "e&tember .9, 1989, 1-8 "%R' 1/-.
4565
%' rollo) &&. 616!61-.
45-5
G.R. No. 10-//9, (ar*, 11, .//0, 0.5 "%R' 390, 0/1.
4585
Rollo) &. .99.
4595
"ee -aJada v. 1on. -uvera, .3/ P,i#. 5.8, 535 819869.
+oday is +uesday, July 1/, !514
<epublic o' the "hilippines
SU6REME COURT
&anila
7# 8;#C
G.R. No. 90272 Jnu/, 29, 1990
6ABL$TO %. SAN$3A3, petitioner,
vs.
THE COMM$SS$ON ON ELECT$ONS, respondent.
ME3$AL3EA, J.:
+his is a petition 'or certiorari assailin) the constitutionality o' Section 19 o' Co$elec <esolution #o. !160 on the )round that it
violates the constitutional )uarantees o' the 'reedo$ o' e9pression and o' the press.
6n 6ctober !, 19J9, <epublic ;ct #o. 6066, entitled E;# ;C+ "<6?:C:#@ F6< ;# 6<@;#:C ;C+ F6< +,7 C6<C:%%7<;
;A+6#6&6AS <7@:6#E (as enacted into la(. "ursuant to said la(, the City o' 8a)uio and the Cordilleras (hich consist o' the
provinces o' 8en)uet, &ountain "rovince, :'u)ao, ;bra and .alin)a-;payao, all co$prisin) the Cordillera ;utono$ous <e)ion, shall
take part in a plebiscite 'or the rati'ication o' said 6r)anic ;ct ori)inally scheduled last Cece$ber !0, 19J9 (hich (as, ho(ever, reset
to January 5, 1995 by virtue o' Co$elec <esolution #o. !!!6 dated Cece$ber !0, 19J9.
+he Co$$ission on 7lections, by virtue o' the po(er vested by the 19J0 Constitution, the 6$nibus 7lection Code 28" JJ13, said
<.;. 6066 and other pertinent election la(s, pro$ul)ated <esolution #o. !160, to )overn the conduct o' the plebiscite on the said
6r)anic ;ct 'or the Cordillera ;utono$ous <e)ion.
:n a petition dated #ove$ber !5, 19J9, herein petitioner "ablito ?. Sanidad, (ho clai$s to be a ne(spaper colu$nist o' the
E6?7<?:7WE 'or the 8;@A:6 &:C%;#C C6A<:7<, a (eekly ne(spaper circulated in the City o' 8a)uio and the Cordilleras,
assailed the constitutionality o' Section 19 o' Co$elec <esolution #o. !160, (hich provides*
Section 19. 0rohibition on columnists- commentators or announcers. H Curin) the plebiscite ca$pai)n
period, on the day be'ore and on the plebiscite day, no $ass $edia colu$nist, co$$entator, announcer or
personality shall use his colu$n or radio or television ti$e to ca$pai)n 'or or a)ainst the plebiscite issues.
:t is alle)ed by petitioner that said provision is void and unconstitutional because it violates the constitutional )uarantees o' the
'reedo$ o' e9pression and o' the press enshrined in the Constitution.
Anlike a re)ular ne(s reporter or ne(s correspondent (ho $erely reports the ne(s, petitioner $aintains that as a colu$nist, his
colu$n obviously and necessarily contains and re'lects his opinions, vie(s and belie's on any issue or sub>ect about (hich he (rites.
"etitioner believes that said provision o' C6&7%7C <esolution #o. !160 constitutes a prior restraint on his constitutionally-
)uaranteed 'reedo$ o' the press and 'urther i$poses subseDuent punish$ent 'or those (ho $ay violate it because it contains a
penal provision, as 'ollo(s*
;rticle S:::, Section 1!!, 7lection 6''enses and 8anned ;cts or ;ctivities. H 79cept to the e9tent that the
sa$e $ay not be applicable plebiscite. the banned actsBactivities and o''enses de'ined in and penalized by
the 6$nibus 7lection Code 21Sections !61, !6!, !6 and ;rticle1 SS::, 8.". 8l). JJ13 and the pertinent
provisions o' <.;. #o. 6646 shall be aplicable to the plebiscite )overned by this <esolution.
"etitioner like(ise $aintains that i' $edia practitioners (ere to e9press their vie(s, belie's and opinions on the issue sub$itted to a
plebiscite, it (ould in 'act help in the )overn$ent drive and desire to disse$inate in'or$ation, and hear, as (ell as ventilate, all sides
o' the issue.
6n #ove$ber !J, 19J9, We issued a te$porary restrainin) order en>oinin) respondent Co$$ission on 7lections 'ro$ en'orcin) and
i$ple$entin) Section 19 o' <esolution #o. !160. We also reDuired the respondent to co$$ent on the petition.
6n January 9, 1995, respondent Co$$ission on 7lections, throu)h the 6''ice o' the Solicitor @eneral 'iled its Co$$ent.
<espondent Co$elec $aintains that the Duestioned provision o' Co$elec <esolution #o. !160 is not violative o' the constitutional
)uarantees o' the 'reedo$ o' e9pression and o' the press. <ather it is a valid i$ple$entation o' the po(er o' the Co$elec to
supervise and re)ulate $edia durin) election or plebiscite periods as enunciated in ;rticle :S-C, Section 4 o' the 19J0 Constitution o'
the <epublic o' the "hilippines.
:t is stated 'urther by respondent that <esolution !160 does not absolutely bar petitioner 'ro$ e9pressin) his vie(s andBor 'ro$
ca$pai)nin) 'or or a)ainst the 6r)anic ;ct. ,e $ay still e9press his vie(s or ca$pai)n 'or or a)ainst the act throu)h the Co$elec
space and airti$e. +his is provided under Sections 95 and 9! o' 8" JJ1*
Section 95. ,omelec Space. H Co$$ission shall procure space in at least one ne(spaper o' )eneral
circulation in every province or city* "rovided, ho(ever, +hat in the absence o' said ne(spaper, publication
shall be done in any other $a)azine or periodical in said province or city, (hich shall be kno(n as ECo$elec
SpaceE (herein candidates can announce their candidacy. Said space shall be allocated, 'ree o' char)e
eDually and i$partially (ithin the area in (hich the ne(spaper is circulated.
Section 9!. ,omelec 5ime. H +he Co$$ission shall procure radio and television ti$e to be kno(n as
ECo$elec +i$eE (hich shall be allocated eDually and i$partially a$on) the candidates (ithin the area o'
covera)e o' all radio and television stations. For this purpose, the 'ranchise o' all radio broadcastin) and
television stations are hereby a$ended so as to provide radio or television ti$e, 'ree o' char)e, durin) the
period o' the ca$pai)n.
<espondent Co$elec has relied $uch on ;rticle :S-C o' the 19J0 Constitution and Section 11 o' <.;. 6646 as the basis 'or the
pro$ul)ation o' the Duestioned Section 19 o' Co$elec <esolution !160.
;rticle :S-C o' the 19J0 Constitution provides*
+he Co$$ission $ay, durin) the election period, supervise or re)ulate the en>oy$ent or utilization o' all
'ranchises or per$its 'or the operation o' transportation and other public utilities, $edia o' co$$unication or
in'or$ation, all )rants, special privile)es, or concessions )ranted by the @overn$ent or any subdivision,
a)ency or instru$entality thereo', includin) any )overn$ent-o(ned or controlled corporation or its subsidiary.
Such supervision or re)ulation shall ai$ to ensure eDual opportunity, ti$e, and space, and the ri)ht to reply,
includin) reasonable, eDual rates there'or, 'or public in'or$ation ca$pai)ns and 'oru$s a$on) candidates in
connection (ith the ob>ective o' holdin) 'ree, orderly, honest, peace'ul and credible elections.
Si$ilarly, Section 11 o' <epublic ;ct #o. 6646 2+he 7lectoral <e'or$ %a( o' 19J03 like(ise provides*
0rohibited forms of election 0ropaganda. H :n addition to the 'or$s o' election propa)anda prohibited under
Section J/ o' 8atas "a$bansa 8l). JJ1, it shall be unla('ul* ...
2b3 'or any ne(spaper, radio, broadcastin) or television station, or other $ass $edia, or any person $akin)
use o' the $ass $edia to sell or to )ive 'ree o' char)e print space or air ti$e 'or ca$pai)n or other political
purposes e9cept to the Co$$ission as provided under Sections 95 and 9! o' 8atas "a$bansa 8l). JJ1. ;ny
$ass $edia colu$nist, co$$entator, announcer, or personality (ho is a candidate 'or any elective o''ice
shall take a leave o' absence 'ro$ his (ork as such durin) the ca$pai)n period. 27$phasis ours3
,o(ever, it is clear 'ro$ ;rt. :S-C o' the 19J0 Constitution that (hat (as )ranted to the Co$elec (as the po(er to supervise and
re)ulate the use and en>oy$ent o' franchises- permits or other grants issued 'or the operation o' transportation or other public
utilities, $edia o' co$$unication or in'or$ation to the end that eDual opportunity, ti$e and space, and the ri)ht to reply, includin)
reasonable, eDual rates there'or, 'or public in'or$ation ca$pai)ns and forums among candidates are ensured. +he evil sou)ht to be
prevented by this provision is the possibility that a 'ranchise holder $ay 'avor or )ive any undue advanta)e to a candidate in ter$s o'
advertisin) space or radio or television ti$e. +his is also the reason (hy a Ecolu$nist, co$$entator, announcer or personality, who
is acandidate for an' electi%e office is reDuired to take a leave o' absence 'ro$ his (ork durin) the ca$pai)n period 2!nd par.
Section 112b3 <.;. 66463. :t cannot be )ainsaid that a colu$nist or co$$entator (ho is also a candidate (ould be $ore e9posed to
the voters to the pre>udice o' other candidates unless reDuired to take a leave o' absence.
,o(ever, neither ;rticle :S-C o' the Constitution nor Section 11 2b3, !nd par. o' <.;. 6646 can be construed to $ean that the
Co$elec has also been )ranted the ri)ht to supervise and re)ulate the e9ercise by media practitioners themsel%es o' their ri)ht to
e9pression durin) plebiscite periods. &edia practitioners e9ercisin) their 'reedo$ o' e9pression durin) plebiscite periods are neither
the 'ranchise holders nor the candidates. :n 'act, there are no candidates involved in a plebiscite. +here'ore, Section 19 o' Co$elec
<esolution #o. !160 has no statutory basis.
:n the case o' 8adoy, Jr. v. Co$elec, %-!/46, 6ct. 16, 1905, (here the constitutionality o' the prohibition o' certain 'or$s o' election
propa)anda (as assailed, We ruled therein that the prohibition is a valid e9ercise o' the police po(er o' the state Eto prevent the
perversion and prostitution o' the electoral apparatus and o' the denial o' eDual protection o' the la(s.E +he evil sou)ht to be
prevented in an election (hich led to 6ur rulin) in that case does not obtain in a plebiscite. :n a plebiscite, votes are taken in an area
on so$e special political $atter unlike in an election (here votes are cast in 'avor o' speci'ic persons 'or so$e o''ice. :n other (ords,
the electorate is asked to vote 'or or a)ainst issues, not candidates in a plebiscite.
;nent respondent Co$elec1s ar)u$ent that Section 19 o' Co$elec <esolution !160 does not absolutely bar petitioner-colu$nist
'ro$ e9pressin) his vie(s andBor 'ro$ ca$pai)nin) 'or or a)ainst the or)anic act because he $ay do so throu)h the Co$elec space
andBor Co$elec radioBtelevision ti$e, the sa$e is not $eritorious. While the li$itation does not absolutely bar petitioner1s 'reedo$ o'
e9pression, it is still a restriction on his choice o' the 'oru$ (here he $ay e9press his vie(. #o reason (as advanced by respondent
to >usti'y such abrid)e$ent. We hold that this 'or$ o' re)ulation is tanta$ount to a restriction o' petitioner1s 'reedo$ o' e9pression 'or
no >usti'iable reason.
"lebiscite issues are $atters o' public concern and i$portance. +he people1s ri)ht to be in'or$ed and to be able to 'reely and
intelli)ently $ake a decision (ould be better served by access to an unabrid)ed discussion o' the issues, includin) the 'oru$. +he
people a''ected by the issues presented in a plebiscite should not be unduly burdened by restrictions on the 'oru$ (here the ri)ht to
e9pression $ay be e9ercised. Co$elec spaces and Co$elec radio ti$e $ay provide a 'oru$ 'or e9pression but they do not
)uarantee 'ull disse$ination o' in'or$ation to the public concerned because they are li$ited to either speci'ic portions in ne(spapers
or to speci'ic radio or television ti$es.
;CC6<C:#@%-, the instant petition is @<;#+7C. Section 19 o' Co$elec <esolution #o. !160 is declared null and void and
unconstitutional. +he restrainin) order herein issued is hereby $ade per$anent.
S6 6<C7<7C.
Fernan- ,...- 9ar%asa- Melencio-)errera- Gutierrez- .r.- ,ruz- 0aras- Feliciano- Ganca'co- 0adilla- /idin- Sarmiento- ,ortes- Gri#o-
A&uino and +egalado- ...- concur.
+he %a(phil "ro>ect - ;rellano %a( Foundation
?N I'N%
AG.R. N. :?<;<:. Ma' ;, 622:B
SOCIAL 3EATHER STATIONS, INCORPORATE5 and
HAMAHALAN P7BLISHING CORPORATION, d"n! -+&"ne&& a&
MANILA STAN5AR5, petitioners, vs. COMMISSION ON
ELECTIONS, respondent.
5 E C I S I O N
MEN5ODA, J.9
Petitioner, "o*ia# >eat,er "tations, ;n*. 8">"9, is a &rivate non!sto*3, non!&ro1it so*ia#
resear*, institution *ondu*ting surve6s in various 1ie#ds, in*#uding e*onomi*s, &o#iti*s,
demogra&,6, and so*ia# deve#o&ment, and t,erea1ter &ro*essing, ana#6$ing, and &ub#i*#6
re&orting t,e resu#ts t,ereo1. @n t,e ot,er ,and, &etitioner Nama,a#an Pub#is,ing %or&oration
&ub#is,es t,e (ani#a "tandard, a ne2s&a&er o1 genera# *ir*u#ation, 2,i*, 1eatures ne2s2ort,6
items o1 in1ormation in*#uding e#e*tion surve6s.
Petitioners broug,t t,is a*tion 1or &ro,ibition to en)oin t,e %ommission on ?#e*tions 1rom
en1or*ing U5.0 o1 R.'. No. 9//6 8=air ?#e*tion '*t9, 2,i*, &rovides:
"urve6s a11e*ting nationa# *andidates s,a## not be &ub#is,ed 1i1teen 8159 da6s be1ore
an e#e*tion and surve6s a11e*ting #o*a# *andidates s,a## not be &ub#is,ed seven 8-9
da6s be1ore an e#e*tion.
+,e term Ke#e*tion surve6sL is de1ined in U5.1 o1 t,e #a2 as 1o##o2s:
?#e*tion surve6s re1er to t,e measurement o1 o&inions and &er*e&tions o1 t,e voters as
regards a *andidateAs &o&u#arit6, Fua#i1i*ations, &#at1orms or a matter o1 &ub#i*
dis*ussion in re#ation to t,e e#e*tion, in*#uding votersA &re1eren*e 1or *andidates or
&ub#i*#6 dis*ussed issues during t,e *am&aign &eriod 8,erea1ter re1erred to as
K"urve6L9.
+o im&#ement U5.0, Reso#ution 3636, U.08,9, dated (ar*, 1, .//1, o1 t,e %@(?7?% en)oins
"urve6s a11e*ting nationa# *andidates s,a## not be &ub#is,ed 1i1teen 8159 da6s be1ore
an e#e*tion and surve6s a11e*ting #o*a# *andidates s,a## not be &ub#is,ed seven 8-9
da6s be1ore an e#e*tion.
Petitioner ">" states t,at it 2is,es to *ondu*t an e#e*tion surve6 t,roug,out t,e &eriod o1
t,e e#e*tions bot, at t,e nationa# and #o*a# #eve#s and re#ease to t,e media t,e resu#ts o1 su*,
surve6 as 2e## as &ub#is, t,em dire*t#6. Petitioner Nama,a#an Pub#is,ing %or&oration, on t,e
ot,er ,and, states t,at it intends to &ub#is, e#e*tion surve6 resu#ts u& to t,e #ast da6 o1 t,e
e#e*tions on (a6 10, .//1.
Petitioners argue t,at t,e restri*tion on t,e &ub#i*ation o1 e#e*tion surve6 resu#ts *onstitutes
a &rior restraint on t,e eGer*ise o1 1reedom o1 s&ee*, 2it,out an6 *#ear and &resent danger to
)usti16 su*, restraint. +,e6 *#aim t,at ">" and ot,er &o##sters *ondu*ted and &ub#is,ed t,e
resu#ts o1 surve6s &rior to t,e 199., 1995, and 1998 e#e*tions u& to as *#ose as t2o da6s be1ore
t,e e#e*tion da6 2it,out *ausing *on1usion among t,e voters and t,at t,ere is neit,er em&iri*a#
nor ,istori*a# eviden*e to su&&ort t,e *on*#usion t,at t,ere is an immediate and inevitab#e danger
to t,e voting &ro*ess &osed b6 e#e*tion surve6s. +,e6 &oint out t,at no simi#ar restri*tion is
im&osed on &o#iti*ians 1rom eG&#aining t,eir o&inion or on ne2s&a&ers or broad*ast media 1rom
2riting and &ub#is,ing arti*#es *on*erning &o#iti*a# issues u& to t,e da6 o1 t,e e#e*tion.
%onseFuent#6, t,e6 *ontend t,at t,ere is no reason 1or ordinar6 voters to be denied a**ess to t,e
resu#ts o1 e#e*tion surve6s 2,i*, are re#ative#6 ob)e*tive.
Res&ondent %ommission on ?#e*tions )usti1ies t,e restri*tions in U5.0 o1 R.'. No. 9//6 as
ne*essar6 to &revent t,e mani&u#ation and *orru&tion o1 t,e e#e*tora# &ro*ess b6 uns*ru&u#ous
and erroneous surve6s )ust be1ore t,e e#e*tion. ;t *ontends t,at 819 t,e &ro,ibition on t,e
&ub#i*ation o1 e#e*tion surve6 resu#ts during t,e &eriod &ros*ribed b6 #a2 bears a rationa#
*onne*tion to t,e ob)e*tive o1 t,e #a2, i.e., t,e &revention o1 t,e debasement o1 t,e e#e*tora#
&ro*ess resu#ting 1rom mani&u#ated surve6s, band2agon e11e*t, and absen*e o1 reH 8.9 it is
narro2#6 tai#ored to meet t,e Kevi#sL soug,t to be &reventedH and 839 t,e im&airment o1 1reedom
o1 eG&ression is minima#, t,e restri*tion being #imited bot, in duration, i.e., t,e #ast 15 da6s
be1ore t,e nationa# e#e*tion and t,e #ast - da6s be1ore a #o*a# e#e*tion, and in s*o&e as it does not
&ro,ibit e#e*tion surve6 resu#ts but on#6 reFuire time#iness. Res&ondent *#aims t,at in Nationa#
Press %#ub v. %@(?7?%,
415
a tota# ban on &o#iti*a# advertisements, 2it, *andidates being
mere#6 a##o*ated broad*ast time during t,e so!*a##ed %@(?7?% s&a*e or %@(?7?% ,our, 2as
u&,e#d b6 t,is %ourt. ;n *ontrast, a**ording to res&ondent, it states t,at t,e &ro,ibition in U5.0 o1
R.'. No. 9//6 is mu*, more #imited.
=or reasons ,ereunder given, 2e ,o#d t,at U5.0 o1 R.'. No. 9//6 *onstitutes an
un*onstitutiona# abridgment o1 1reedom o1 s&ee*,, eG&ression, and t,e &ress.
+o be sure, U5.0 #a6s a &rior restraint on 1reedom o1 s&ee*,, eG&ression, and t,e &ress b6
&ro,ibiting t,e &ub#i*ation o1 e#e*tion surve6 resu#ts a11e*ting *andidates 2it,in t,e &res*ribed
&eriods o1 1i1teen 8159 da6s immediate#6 &re*eding a nationa# e#e*tion and seven 8-9 da6s be1ore
a #o*a# e#e*tion. Ie*ause o1 t,e &re1erred status o1 t,e *onstitutiona# rig,ts o1 s&ee*,, eG&ression,
and t,e &ress, su*, a measure is vitiated b6 a 2eig,t6 &resum&tion o1 inva#idit6.
4.5
;ndeed, Kan6
s6stem o1 &rior restraints o1 eG&ression *omes to t,is %ourt bearing a ,eav6 &resum&tion against
its *onstitutiona# va#idit6. . . . +,e Government Tt,us *arries a ,eav6 burden o1 s,o2ing
)usti1i*ation 1or t,e en1or*ement o1 su*, restraint.AL
435
+,ere is t,us a reversa# o1 t,e norma#
&resum&tion o1 va#idit6 t,at in,eres in ever6 #egis#ation.
Nor ma6 it be argued t,at be*ause o1 'rt. ;C!%, U0 o1 t,e %onstitution, 2,i*, gives t,e
%@(?7?% su&ervisor6 &o2er to regu#ate t,e en)o6ment or uti#i$ation o1 1ran*,ise 1or t,e
o&eration o1 media o1 *ommuni*ation, no &resum&tion o1 inva#idit6 atta*,es to a measure #i3e
U5.0. =or as 2e ,ave &ointed out in sustaining t,e ban on media &o#iti*a# advertisements, t,e
grant o1 &o2er to t,e %@(?7?% under 'rt. ;C!%, U0 is #imited to ensuring KeFua# o&&ortunit6,
time, s&a*e, and t,e rig,t to reL as 2e## as uni1orm and reasonab#e rates o1 *,arges 1or t,e use
o1 su*, media 1a*i#ities 1or K&ub#i* in1ormation *am&aigns and 1orums among *andidates.L
405
+,is
%ourt stated:
+,e te*,ni*a# e11e*t o1 'rti*#e ;C 8%9 809 o1 t,e %onstitution ma6 be seen to be t,at no
&resum&tion o1 inva#idit6 arises in res&e*t o1 eGer*ises o1 su&ervisor6 or regu#ator6
aut,orit6 on t,e &art o1 t,e %ome#e* 1or t,e &ur&ose o1 se*uring eFua# o&&ortunit6
among *andidates 1or &o#iti*a# o11i*e, a#t,oug, su*, su&ervision or regu#ation ma6
resu#t in some #imitation o1 t,e rig,ts o1 1ree s&ee*, and 1ree &ress.
455
(R. JB"+;%? N'PBN'N dissents. :e re)e*ts as ina&&ro&riate t,e test o1 *#ear and
&resent danger 1or determining t,e va#idit6 o1 U5.0. ;ndeed, as ,as been &ointed out in @smeOa v.
%@(?7?%,
465
t,is test 2as origina##6 1ormu#ated 1or t,e *rimina# #a2 and on#6 #ater a&&ro&riated
1or 1ree s&ee*, *ases. :en*e, 2,i#e it ma6 be use1u# 1or determining t,e va#idit6 o1 #a2s dea#ing
2it, in*iting to sedition or in*endiar6 s&ee*,, it ma6 not be adeFuate 1or su*, regu#ations as t,e
one in Fuestion. =or su*, a test is *on*erned 2it, Fuestions o1 t,e gravit6 and imminen*e o1 t,e
danger as basis 1or *urtai#ing 1ree s&ee*,, 2,i*, is not t,e *ase o1 U5.0 and simi#ar regu#ations.
;nstead, (R. JB"+;%? N'PBN'N &ur&orts to engage in a 1orm o1 ba#an*ing b6 K2eig,ing
and ba#an*ing t,e *ir*umstan*es to determine 2,et,er &ub#i* interest 4in 1ree, order#6, ,onest,
&ea*e1u# and *redib#e e#e*tions5 is served b6 t,e regu#ation o1 t,e 1ree en)o6ment o1 t,e rig,tsL
8&age -9. '1ter *anvassing t,e reasons 1or t,e &ro,ibition, i.e.) to &revent #ast!minute &ressure on
voters, t,e *reation o1 band2agon e11e*t to 1avor *andidates, misin1ormation, t,e K)un3ingL o1
2ea3 and K#osingL *andidates b6 t,eir &arties, and t,e 1orm o1 e#e*tion *,eating *a##ed Kdagdag!
ba2asL and invo3ing t,e "tateAs &o2er to su&ervise media o1 in1ormation during t,e e#e*tion
&eriod 8&ages 11!169, t,e dissenting o&inion sim *on*#udes:
<ie2ed in t,e #ig,t o1 t,e #egitimate and signi1i*ant ob)e*tives o1 "e*tion 5.0, it ma6
be seen t,at its #imiting im&a*t on t,e rig,ts o1 1ree s&ee*, and o1 t,e &ress is not
undu#6 re&ressive or unreasonab#e. ;ndeed, it is a mere restri*tion, not an abso#ute
&ro,ibition, on t,e &ub#i*ation o1 e#e*tion surve6s. ;t is #imited in durationH it a&&#ies
on#6 during t,e &eriod 2,en t,e voters are &resumab#6 *ontem&#ating 2,om t,e6
s,ou#d e#e*t and 2,en t,e6 are most sus*e&tib#e to su*, un2arranted &ersuasion.
+,ese surve6s ma6 be &ub#is,ed t,erea1ter. 8Pages 1-!189
+,e dissent does not, ,o2ever, s,o2 2,6, on ba#an*e, t,ese *onsiderations s,ou#d out2eig,
t,e va#ue o1 1reedom o1 eG&ression. ;nstead, re#ian*e is &#a*ed on 'rt. ;C!%, U0. 's a#read6
stated, t,e &ur&ose o1 'rt. ;C!%, U0 is to Kensure eFua# o&&ortunit6, time, and s&a*e and t,e rig,t
o1 re, in*#uding reasonab#e, eFua# rates t,ere1or 1or &ub#i* in1ormation *am&aigns and 1orums
among *andidates.L :en*e t,e va#idit6 o1 t,e ban on media advertising. ;t is note2ort,6 t,at
R.'. No. 9//6, U10 ,as #i1ted t,e ban and no2 a##o2s *andidates to advertise t,eir *andida*ies
in &rint and broad*ast media. ;ndeed, to sustain t,e ban on t,e &ub#i*ation o1 surve6 resu#ts
2ou#d san*tion t,e *ensors,i& o1 a## s&ea3ing b6 *andidates in an e#e*tion on t,e ground t,at t,e
usua# bombasts and ,6&erbo#i* *#aims made during t,e *am&aigns *an *on1use voters and t,us
debase t,e e#e*tora# &ro*ess.
;n sum, t,e dissent ,as engaged on#6 in a ba#an*ing at t,e margin. +,is 1orm o1 ad ,o*
ba#an*ing &redi*tab#6 resu#ts in sustaining t,e *,a##enged #egis#ation and #eaves 1reedom o1
s&ee*,, eG&ression, and t,e &ress 2it, #itt#e &rote*tion. =or an6one 2,o *an bring a &#ausib#e
)usti1i*ation 1or2ard *an easi#6 s,o2 a rationa# *onne*tion bet2een t,e statute and a #egitimate
governmenta# &ur&ose. ;n *ontrast, t,e ba#an*ing o1 interest underta3en b6 t,en Justi*e %astro
in +on(ales v.CO*?L?C)
4-5
1rom 2,i*, t,e dissent in t,is *ase ta3es its *ue, 2as a strong one
resu#ting in ,is *on*#usion t,at U5/!I o1 R.'. No. 088/, 2,i*, #imited t,e &eriod o1 e#e*tion
*am&aign and &artisan &o#iti*a# a*tivit6, 2as an un*onstitutiona# abridgment o1 1reedom o1
eG&ression.
Nor *an t,e ban on e#e*tion surve6s be )usti1ied on t,e ground t,at t,ere are ot,er
*ountries -8, a**ording to t,e "o#i*itor Genera#, 2,i#e t,e dissent *ites .8 2,i*, simi#ar#6
im&ose restri*tions on t,e &ub#i*ation o1 e#e*tion surve6s. 't best t,is surve6 is in*on*#usive. ;t
is note2ort,6 t,at in t,e Bnited "tates no restri*tion on t,e &ub#i*ation o1 e#e*tion surve6 resu#ts
eGists. ;t *annot be argued t,at t,is is be*ause t,e Bnited "tates is a mature demo*ra*6. Neit,er
are t,ere #a2s im&osing an embargo on surve6 resu#ts, even 1or a #imited &eriod, in ot,er
*ountries. 's &ointed out b6 &etitioners, t,e Bnited Ningdom, 'ustria, Ie#gium, Denmar3,
?stonia, =in#and, ;*e#and, ;re#and, 7atvia, (a#ta, (a*edonia, t,e Net,er#ands, Nor2a6, "2eden,
and B3raine, some o1 2,i*, are no o#der nor more mature t,an t,e P,i#i&&ines in &o#iti*a#
deve#o&ment, do not restri*t t,e &ub#i*ation o1 e#e*tion surve6 resu#ts.
>,at test s,ou#d t,en be em&#o6ed to determine t,e *onstitutiona# va#idit6 o1 U5.0Q +,e
Bnited "tates "u&reme %ourt, t,roug, %,ie1 Justi*e >arren, ,e#d in@nited States v. OD2rien:
4'5 government regu#ation is su11i*ient#6 )usti1ied 415 i1 it is 2it,in t,e
*onstitutiona# &o2er o1 t,e GovernmentH 4.5 i1 it 1urt,ers an im&ortant or
substantia# governmenta# interestH 435 i1 t,e governmenta# interest is unre#ated to
t,e su&&ression o1 1ree eG&ressionH and 405 i1 t,e in*identa# restri*tion on a##eged
=irst 'mendment 1reedoms 4o1 s&ee*,, eG&ression and &ress5 is no greater t,an is
essentia# to t,e 1urt,eran*e o1 t,at interest.
485
+,is is so 1ar t,e most in1#uentia# test 1or distinguis,ing *ontent!based 1rom *ontent!neutra#
regu#ations and is said to ,ave Kbe*ome *anoni*a# in t,e revie2 o1 su*, #a2s.L
495
;t is note2ort,6
t,at t,e OD2rien test ,as been a&&#ied b6 t,is %ourt in at #east t2o *ases.
41/5
Bnder t,is test, even i1 a #a2 1urt,ers an im&ortant or substantia# governmenta# interest, it
s,ou#d be inva#idated i1 su*, governmenta# interest is Knot unre#ated to t,e su&&ression o1 1ree
eG&ression.L (oreover, even i1 t,e &ur&ose is unre#ated to t,e su&&ression o1 1ree s&ee*,, t,e #a2
s,ou#d nevert,e#ess be inva#idated i1 t,e restri*tion on 1reedom o1 eG&ression is greater t,an is
ne*essar6 to a*,ieve t,e governmenta# &ur&ose in Fuestion.
@ur inFuir6 s,ou#d a**ording#6 1o*us on t,ese t2o *onsiderations as a&&#ied to U5.0.
/irst. "e*. 5.0 1ai#s to meet *riterion 435 o1 t,e OD2rien test be*ause t,e *ausa# *onne*tion
o1 eG&ression to t,e asserted governmenta# interest ma3es su*, interest Knot unre#ated to t,e
su&&ression o1 1ree eG&ression.L I6 &ro,ibiting t,e &ub#i*ation o1 e#e*tion surve6 resu#ts be*ause
o1 t,e &ossibi#it6 t,at su*, &ub#i*ation mig,t undermine t,e integrit6 o1 t,e e#e*tion, U5.0
a*tua##6 su&&resses a 2,o#e *#ass o1 eG&ression, 2,i#e a##o2ing t,e eG&ression o1 o&inion
*on*erning t,e same sub)e*t matter b6 ne2s&a&er *o#umnists, radio and +< *ommentators,
arm*,air t,eorists, and ot,er o&inion ma3ers. ;n e11e*t, U5.0 s,o2s a bias 1or a &arti*u#ar sub)e*t
matter, i1 not vie2&oint, b6 &re1erring &ersona# o&inion to statisti*a# resu#ts. +,e *onstitutiona#
guarantee o1 1reedom o1 eG&ression means t,at Kt,e government ,as no &o2er to restri*t
eG&ression be*ause o1 its message, its ideas, its sub)e*t matter, or its *ontent.L
4115
+,e in,ibition o1
s&ee*, s,ou#d be u&,e#d on#6 i1 t,e eG&ression 1a##s 2it,in one o1 t,e 1e2 un&rote*ted *ategories
dea#t 2it, in Chaplinsky v. %ew 1ampshire,
41.5
t,us:
+,ere are *ertain 2e##!de1ined and narro2#6 #imited *#asses o1 s&ee*,, t,e &revention
and &unis,ment o1 2,i*, ,ave never been t,oug,t to raise an6 %onstitutiona#
&rob#em. +,ese in*#ude t,e #e2d and obs*ene, t,e &ro1ane, t,e #ibe#ous, and t,e
insu#ting or T1ig,tingA 2ords t,ose 2,i*, b6 t,eir ver6 utteran*e in1#i*t in)ur6 or
tend to in*ite an immediate brea*, o1 t,e &ea*e. 4"5u*, utteran*es are no essentia# &art
o1 an6 eG&osition o1 ideas, and are o1 su*, s#ig,t so*ia# va#ue as a ste& to trut, t,at an6
bene1it t,at ma6 be derived 1rom t,em is *#ear#6 out2eig,ed b6 t,e so*ia# interest in
order and mora#it6.
Nor is t,ere )usti1i*ation 1or t,e &rior restraint 2,i*, U5.0 #a6s on &rote*ted
s&ee*,. ;n %ear v. *innesota,
4135
it 2as ,e#d:
4+,e5 &rote*tion even as to &revious restraint is not abso#ute#6 un#imited. Iut t,e
#imitation ,as been re*ogni$ed on#6 in eG*e&tiona# *ases. . . . No one 2ou#d Fuestion
but t,at a government mig,t &revent a*tua# obstru*tion to its re*ruiting servi*e or t,e
&ub#i*ation o1 t,e sai#ing dates o1 trans&orts or t,e number and #o*ation o1 troo&s. @n
simi#ar grounds, t,e &rimar6 reFuirements o1 de*en*6 ma6 be en1or*ed against
obs*ene &ub#i*ations. +,e se*urit6 o1 t,e *ommunit6 #i1e ma6 be &rote*ted against
in*itements to a*ts o1 vio#en*e and t,e overt,ro2 b6 1or*e o1 order#6 government . . . .
+,us, *ontrar6 to t,e *#aim o1 t,e "o#i*itor Genera#, t,e &ro,ibition im&osed b6 U5.0 *annot
be )usti1ied on t,e ground t,at it is on#6 1or a #imited &eriod and is on#6 in*identa#. +,e
&ro,ibition ma6 be 1or a #imited time, but t,e *urtai#ment o1 t,e rig,t o1 eG&ression is dire*t,
abso#ute, and substantia#. ;t *onstitutes a tota# su&&ression o1 a *ategor6 o1 s&ee*, and is not
made #ess so be*ause it is on#6 1or a &eriod o1 1i1teen 8159 da6s immediate#6 be1ore a nationa#
e#e*tion and seven 8-9 da6s immediate#6 be1ore a #o*a# e#e*tion.
+,is su11i*ient#6 distinguis,es U5.0 1rom R.'. No. 6606, U118b9, 2,i*, t,is %ourt 1ound to
be va#id in %ational 9ress Club v. CO*?L?C
4105
and OsmeJa v.CO*?L?C.
4155
=or t,e ban im&osed
b6 R.'. No. 6606, U118b9 is not on#6 aut,ori$ed b6 a s&e*i1i* *onstitutiona# &rovision,
4165
but it
a#so &rovided an a#ternative so t,at, as t,is %ourt &ointed out in OsmeJa, t,ere 2as a*tua##6 no ban
but on#6 a substitution o1 media advertisements b6 t,e %@(?7?% s&a*e and %@(?7?% ,our.
Se!ond. ?ven i1 t,e governmenta# interest soug,t to be &romoted is unre#ated to t,e
su&&ression o1 s&ee*, and t,e resu#ting restri*tion o1 1ree eG&ression is on#6 in*identa#, U5.0
nonet,e#ess 1ai#s to meet *riterion 405 o1 t,e OD2rien test, name#6, t,at t,e restri*tion be not
greater t,an is ne*essar6 to 1urt,er t,e governmenta# interest. 's a#read6 stated, U5.0 aims at t,e
&revention o1 #ast!minute &ressure on voters, t,e *reation o1 band2agon e11e*t, K)un3ingL o1
2ea3 or K#osingL *andidates, and resort to t,e 1orm o1 e#e*tion *,eating *a##ed Kdagdag!
ba2as.L Praise2ort,6 as t,ese aims o1 t,e regu#ation mig,t be, t,e6 *annot be attained at t,e
sa*ri1i*e o1 t,e 1undamenta# rig,t o1 eG&ression, 2,en su*, aim *an be more narro2#6 &ursued
b6 &unis,ing un#a21u# a!ts, rat,er t,an spee!h be*ause o1 a&&re,ension t,at su*, s&ee*, *reates
t,e danger o1 su*, evi#s. +,us, under t,e 'dministrative %ode o1 198-,
41-5
t,e %@(?7?% is
given t,e &o2er:
+o sto& an6 i##ega# a*tivit6, or *on1is*ate, tear do2n, and sto& an6 un#a21u#,
#ibe#ous, mis#eading or 1a#se e#e*tion &ro&aganda, a1ter due noti*e and ,earing.
+,is is sure#6 a #ess restri*tive means t,an t,e &ro,ibition *ontained in U5.0. Pursuant to t,is
&o2er o1 t,e %@(?7?%, it *an *on1is*ate bogus surve6 resu#ts *a#*u#ated to mis#ead voters.
%andidates *an ,ave t,eir o2n surve6s *ondu*ted. No rig,t o1 re *an be invo3ed b6
ot,ers. No &rin*i&#e o1 eFua#it6 is invo#ved. ;t is a 1ree mar3et to 2,i*, ea*, *andidate brings
,is ideas. 's 1or t,e &ur&ose o1 t,e #a2 to &revent band2agon e11e*ts, it is doubt1u# 2,et,er t,e
Government *an dea# 2it, t,is natura#!enoug, tenden*6 o1 some voters. "ome voters 2ant to be
identi1ied 2it, t,e K2inners.L "ome are sus*e&tib#e to t,e ,erd menta#it6. %an t,ese be
#egitimate#6 &ro,ibited b6 su&&ressing t,e &ub#i*ation o1 surve6 resu#ts 2,i*, are a 1orm o1
eG&ressionQ ;t ,as been ,e#d t,at K4mere5 #egis#ative &re1eren*es or be#ie1s res&e*ting matters o1
&ub#i* *onvenien*e ma6 2e## su&&ort regu#ation dire*ted at ot,er &ersona# a*tivities, but be
insu11i*ient to )usti16 su*, as diminis,es t,e eGer*ise o1 rig,ts so vita# to t,e maintenan*e o1
demo*rati* institutions.L
4185
+o summari$e t,en, 2e ,o#d t,at U5.0 is inva#id be*ause 819 it im&oses a &rior restraint on
t,e 1reedom o1 eG&ression, 8.9 it is a dire*t and tota# su&&ression o1 a *ategor6 o1 eG&ression even
t,oug, su*, su&&ression is on#6 1or a #imited &eriod, and 839 t,e governmenta# interest soug,t to
be &romoted *an be a*,ieved b6 means ot,er t,an t,e su&&ression o1 1reedom o1 eG&ression.
@n t,e ot,er ,and, t,e %@(?7?% *ontends t,at under 'rt. ;C!', U- o1 t,e %onstitution, its
de*isions, orders, or reso#utions ma6 be revie2ed b6 t,is %ourt on#6 b6 *ertiorari. +,e 1#a2s in
t,is argument is t,at it assumes t,at its Reso#ution 3636, dated (ar*, 1, .//1 is a Kde*ision,
order, or reso#utionL 2it,in t,e meaning o1 'rt. ;C!', U-. ;ndeed, *ounse# 1or %@(?7?%
maintains t,at Reso#ution 3636 2as KrenderedL b6 t,e %ommission. :o2ever, t,e Reso#ution
does not &ur&ort to ad)udi*ate t,e rig,t o1 an6 &art6. ;t is not an eGer*ise b6 t,e %@(?7?% o1
its ad)udi*ator6 &o2er to sett#e t,e *#aims o1 &arties. +o t,e *ontrar6, Reso#ution 3636 *#ear#6
states t,at it is &romu#gated to im&#ement t,e &rovisions o1 R.'. No. 9//6. :en*e, t,ere is no
basis 1or t,e %@(?7?%As *#aim t,at t,is &etition 1or &ro,ibition is ina&&ro&riate. Pro,ibition
,as been 1ound a&&ro&riate 1or testing t,e *onstitutiona#it6 o1 various e#e*tion #a2s, ru#es, and
regu#ations.
4195
3HERE4ORE, t,e &etition 1or &ro,ibition is GR'N+?D and U5.0 o1 R.'. No. 9//6 and
U.08,9 o1 %@(?7?% Reso#ution 3636, dated (ar*, 1, .//1, are de*#ared un*onstitutiona#.
SO OR5ERE5.
:avide) Jr.) C.J.) ,itug) and +on(aga$Reyes) JJ.) *on*ur.
2ellosillo) 9ardo) 0nares$Santiago) and Sandoval$+utierre() JJ.) )oin t,e dissent o1 J.
Na&unan.
*elo) 9uno) and 9anganiban) JJ.) see *on*urring o&inion.
Gapunan) J.) see dissenting o&inion.
>uisumbing) 2uena) and :e Leon) Jr.) JJ.) on #eave.
415
./- "%R' 1 8199.9.
4.5
'6er Produ*tions Pt6. 7td. v. %a&u#ong, 16/ "%R' 861, 8-3 819889.
435
Ne2 or3 +imes v. Bnited "tates, 0/3 B.". -13, -10, .9 7.?d. .d 8.., 8.0 819-19.
405
Nationa# Press %#ub v. %@(?7?%, ./- "%R' 1 8199.9H @smeOa v. %@(?7?%, .88 "%R' 00- 819989.
455
Nationa# Press %#ub v. %@(?7?%, supra at 9.
465
.88 "%R' 00- 819989.
4-5
.- "%R' 835, 888 819699 8%astro, J., *on*urring and dissenting9.
485
391 B.". 36-, 3--, ./ 7.?d..d 6-., 68/ 819689 8bra*3eted numbers added9.
495
G. Gunt,er D N. "u##ivan, %onstitutiona# 7a2 1.1- 813t, ed. 199-9.
41/5
'diong v. %@(?7?%, ./- "%R' -1. 8199.9H @smeOa v. %@(?7?%, supra.
4115
Po#i*e De&t. v. (os,#e6, 0/8 B.". 9., 95, 33 7.?d..d .1., .16 819-.9.
41.5
315 B.". 568, 5-1!5-., 86 7.?d. 1/31, 1/35 8190.9. See Jo,n :art ?#6, /lag :ese!ration" ; Case Study in the
Roles o Categori(ation and 2alan!ing in /irst ;mendment ;nalysis) 88 :arv. 7. Rev. 108., 109- 819-59.
4135
.83 B.". 69-, -15!16, -5 7.?d. 135-, 136- 819319H See also Ne2 or3 +imes v. Bnited "tates, 0/3 B.". -!13, .9
7.?d..d 8.. 819-19.
4105
Supra.
4155
Supra.
4165
'rt. ;C!%, U0.
41-5
I3. <, +it. ;, "ubtit. %, %,. 1, U3 819 8em&,asis added9.
4185
"*,neider v. ;rvington, 3/8 B.". 10-, 161, 80 7.?d. 155 819399.
4195
See) e.g.) (utu* v. %@(?7?%, 36 "%R' ..8 819-/9H Gon$a#es v. %@(?7?%, .- "%R' 835 819699.
+oday is +uesday, July 1/, !514
<epublic o' the "hilippines
SU6REME COURT
&anila
7# 8;#C
G.R. No. L-99329 Ju8, 19, 1929
EASTERN BROA3CAST$NG COR6ORAT$ON @3#REA petitioner,
vs.
THE HON. JOSE 6. 3ANS, JR., M$N$STER O" TRANS6ORTAT$ON N COMMUN$CAT$ONS, THE HON. CE"ER$NO S. CARREON,
COMM$SS$ONER, NAT$ONAL TELECOM., COMM$SS$ON, ET AL., respondents.
< 7 S 6 % A + : 6 #
GUT$ERRE1, JR., J.:
+his petition (as 'iled to co$pel the respondents to allo( the reopenin) o' <adio Station C-<7 (hich had been su$$arily closed
on )rounds o' national security.
+he petitioner contended that it (as denied due process (hen it (as closed on the $ere alle)ation that the radio station (as used to
incite people to sedition. it alle)ed that no hearin) (as held and not a bit o' proo' (as sub$itted to establish a 'actual basis 'or the
closure. +he petitioner (as not in'or$ed be'orehand (hy ad$inistrative action (hich closed the radio station (as taken a)ainst it.
#o action (as taken by the respondents to entertain a $otion seekin) the reconsideration o' the closure action. +he petitioner also
raised the issue o' 'reedo$ o' speech. :t appears 'ro$ the records that the respondents1 )eneral char)e o' Eincitin) people to co$$it
acts o' seditionE arose 'ro$ the petitioner1s shi't to(ards (hat it stated (as the covera)e o' public events and the airin) o' pro)ra$s
)eared to(ards public a''airs.
6n &arch !/, 19J/, be'ore the Court could pro$ul)ate a decision sDuarely passin) upon all the issues raised, the petitioner throu)h
its president, &r. <ene @. 7spina suddenly 'iled a $otion to (ithdra( or dis$iss the petition.
+he petitioner alle)ed*
1. "etitioner 7astern 8roadcastin) Corporation has already sold its radio broadcastin) station in 'avor o'
&anuel 8. "astrana as (ell as its ri)hts and interest in the radio station C-<7 in Cebu includin) its ri)ht to
operate and its eDuip$ent=
!. <espondent #ational +eleco$$unications Co$$ission has e9pressed its (illin)ness to )rant to the said
ne( o(ner &anuel 8. "astrana the reDuisite license and 'ranchise to operate the said radio station and to
approve the sale o' the radio trans$itter o' said station C-<7=
. :n vie( o' the 'ore)oin), petitioner has no lon)er any interest in said case, and the ne( o(ner, &anuel 8.
"astrana is like(ise not interested in pursuin) the case any 'urther.
+he case, there'ore, has beco$e $oot and acade$ic. ,o(ever, 'or the )uidance o' in'erior courts and ad$inistrative tribunals
e9ercisin) Duasi->udicial 'unctions, the Court issues the 'ollo(in) )uidelines*
213 +he cardinal pri$ary reDuire$ents in ad$inistrative proceedin)s laid do(n by this Court in Ang 5iba' %. ,ourt of 3ndustrial
+elations 269 "hil. 6/3 should be 'ollo(ed be'ore a broadcast station $ay be closed or its operations curtailed.
1
2!3 :t is necessary to reiterate that (hile there is no controllin) and precise de'inition o' due process, it 'urnishes
an una%oidable standard to (hich )overn$ent action $ust con'or$ in order that any deprivation o' li'e, liberty, or property, in each
appropriate case, $ay be valid 27r$ita-&alate ,otel and &otel 6perators ;ssociation v. City &ayor, !5 SC<; J493.
23 ;ll 'or$s o' $edia, (hether print or broadcast, are entitled to the broad protection o' the 'reedo$ o' speech and e9pression
clause. +he test 'or li$itations on 'reedo$ o' e9pression continues to be the clear and present dan)er rule H that (ords are used in
such circu$stances and are o' such a nature as to create a clear and present dan)er that they (ill brin) about the substantive evils
that the la($aker has a ri)ht to prevent, :n his,onstitution of the 0hilippines 2!nd 7dition, pp. /69-/053 Chie' Justice 7nriDue &.
Fernando cites at least nine o' our decisions (hich apply the test H 20rimicias %. Fugoso FJ5 "hil. 01G, American /ible Societ' %. ,it'
of ManilaF151 "hil. J6G, ,abansag %. Fernandez F15! "hil. 1/!G, 6era %. Arca F!J SC<; /1G, 9a%arro %. 6illegas F1 SC<;
91G, 3mbong %. Ferrer F/ SC<; !JG, /ado' %. ,ommission on Elections F/ SC<; !J/G, 0eople %. Ferrer F4J SC<; J!G, and
the 0hilippine /looming Mills Emplo'ees Organization %. 0hilippine /looming Mills ,o.- 3nc. F/1 SC<; 1J9G. &ore recently, the clear
and present dan)er test (as applied in J.8.%. <eyes in behal' o' the Anti-/ases ,oalition %. /agatsing F1!/ SC<; //G.
243 +he clear and present dan)er test, ho(ever, does not lend itsel' to a si$plistic and all e$bracin) interpretation applicable to all
utterances in all 'oru$s.
8roadcastin) has to be licensed. ;ir(ave 'reDuencies have to be allocated a$on) Duali'ied users. ; broadcast corporation cannot
si$ply appropriate a certain 'reDuency (ithout re)ard 'or )overn$ent re)ulation or 'or the ri)hts o' others.
;ll 'or$s o' co$$unication are entitled to the broad protection o' the 'reedo$ o' e9pression clause. #ecessarily, ho(ever, the
'reedo$ o' television and radio broadcastin) is so$e(hat lesser in scope than the 'reedo$ accorded to ne(spaper and print $edia.
+he American ,ourt in Federal ,ommunications ,ommission %. 0acifica Foundation 24J A.S. 0!63, con'ronted (ith a patently
o''ensive and indecent re)ular radio pro)ra$, e9plained (hy radio broadcastin), $ore than other 'or$s o' co$$unications, receives
the $ost li$ited protection 'ro$ the 'ree e9pression clause. First, broadcast $edia have established a uniDuely pervasive presence
in the lives o' all citizens, &aterial presented over the air(aves con'ronts the citizen, not only in public, but in the privacy o' his ho$e.
Second, broadcastin) is uniDuely accessible to children. 8ookstores and $otion picture theaters $ay be prohibited 'ro$ $akin)
certain $aterial available to children, but the sa$e selectivity cannot be done in radio or television, (here the listener or vie(er is
constantly tunin) in and out.
Si$ilar considerations apply in the area o' national security.
+he broadcast $edia have also established a uniDuely pervasive presence in the lives o' all Filipinos, #e(spapers and current
books are 'ound only in $etropolitan areas and in the poblaciones o' $unicipalities accessible to 'ast and re)ular transportation.
7ven here, there are lo( inco$e $asses (ho 'ind the cost o' books, ne(spapers, and $a)azines beyond their hu$ble $eans.
8asic needs like 'ood and shelter per'orce en>oy hi)h priorities.
6n the other hand, the transistor radio is 'ound every(here. +he television set is also beco$in) universal. +heir $essa)e $ay be
si$ultaneously received by a national or re)ional audience o' listeners includin) the indi''erent or un(illin) (ho happen to be (ithin
reach o' a blarin) radio or television set. +he $aterials broadcast over the air(aves reach every person o' every a)e, persons o'
varyin) susceptibilities to persuasion, persons o' di''erent :.L.s and $ental capabilities, persons (hose reactions to in'la$$atory or
o''ensive speech (ould be di''icult to $onitor or predict. +he i$pact o' the vibrant speech is 'orce'ul and i$$ediate. Anlike readers
o' the printed (ork, the radio audience has lesser opportunity to co)itate analyze, and re>ect the utterance.
2/3 +he clear and present dan)er test, there'ore, $ust take the particular circu$stances o' broadcast $edia into account. +he
supervision o' radio stations-(hether by )overn$ent or throu)h sel'-re)ulation by the industry itsel' calls 'or thou)ht'ul, intelli)ent
and sophisticated handlin).
+he )overn$ent has a ri)ht to be protected a)ainst broadcasts (hich incite the listeners to violently overthro( it. <adio and
television $ay not be used to or)anize a rebellion or to si)nal the start o' (idespread uprisin). ;t the sa$e ti$e, the people have a
ri)ht to be in'or$ed. <adio and television (ould have little reason 'or e9istence i' broadcasts are li$ited to bland, obseDuious, or
pleasantly entertainin) utterances. Since they are the $ost convenient and popular $eans o' disse$inatin) varyin) vie(s on public
issues, they also deserve special protection.
263 +he 'reedo$ to co$$ent on public a''airs is essential to the vitality o' a representative de$ocracy. :n the 191J case o' ;nited
States %. /ustos 20 "hil. 013 this Court (as already stressin) that.
+he interest o' society and the $aintenance o' )ood )overn$ent de$and a 'ull discussion o' public a''airs.
Co$plete liberty to co$$ent on the conduct o' public $en is a scalpel in the case o' 'ree speech. +he sharp
incision o' its probe relieves the abscesses o' o''icialdo$. &en in public li'e $ay su''er under a hostile and an
un>ust accusation= the (ound can be assua)ed (ith the bal$ o' a clear conscience. ; public o''icer $ust not
be too thin-skinned (ith re'erence to co$$ent upon his o''icial acts. 6nly thus can the intelli)ence and
di)nity o' the individual be e9alted.
203 8roadcast stations deserve the special protection )iven to all 'or$s o' $edia by the due process and 'reedo$ o' e9pression
clauses o' the Constitution.
W,7<7F6<7, the case havin) beco$e $oot and acade$ic, the petitioner1s $otion to (ithdra( or dis$iss the petition is hereby
@<;#+7C.
S6 6<C7<7C.
Melencio-)errera- 0lana- Escolin +elo%a- ,ue%as and Alampa'- ...- concur.
Ma(asiar- ,oncepcion- .r. and 4e la Fuente- ...- concur in the result Lthe case ha%ing become moot and academicM.
A&uino- ..- too( no part.
Se*/+e O*&n&on(
"ERNAN3O, C.J., concurrin)*
: concur in the ponencia o' Justice @utierrez, Jr., notable 'or its reiteration o' the clear and present dan)er principle as the standard
o' li$itation on 'ree speech and press, as decided by a unani$ous court in ../.L. +e'es %. /agatsing.
1
;s $ay be )leaned 'ro$ the votin) o' the Justices, the $a>ority 'avors the vie( that even i' a case (ere $oot and acade$ic, a
state$ent o' the )overnin) principle is appropriate in the resolution o' dis$issal 'or the )uidance not only o' the parties but o' others
si$ilarly situated. +here are three Justices, ho(ever, &akasiar, Concepcion, Jr. and de la Fuente, (ho (ould strictly adhere to the
concept that the case bein) $oot and acade$ic, the appropriate disposition is that o' si$ply dis$issin) the action. +hat is to abide
by the teachin) o' orthodo9 learnin). +he "hilippines, ho(ever, has deviated 'ro$ such a strict vie(. #or is this approach o' recent
vinta)e. ;s early as Ale2andrino %. 8uezon
2
decided in 19!4, this Court, not(ithstandin) the absence o' >urisdiction, e9pressed throu)h
Justice &alcol$ (hat principle o' la( should )overn. Si$ilarly in Osmena- .r. %. 0endatun,
3
not(ithstandin) (ell-'ounded doubts as to
>urisdiction and a 'indin) that the case should be dis$issed 'or bein) $oot and acade$ic, this Court, throu)h the then Justice, later Chie'
Justice 8en)zon, passed upon the le)al Duestion raised. :n that sense, the "hilippines has 'ollo(ed an approach distinct 'ro$ that o' the
Anited States, not(ithstandin) the in'luence o' ;$erican Constitutional la( on our le)al syste$.
;lso let $e state 'or the record that the ori)inal opinion prepared by Justice @utierrez, Jr. could not have been released in ;pril a'ter
the petitioner on &arch !/, 19J/ E'iled a $otion to (ithdra( or dis$iss the petition.E ;'ter that date, so$e $e$bers o' the Court
(anted the $atter discussed ane( as to its appropriate disposition. +hat is the e9planation (hy such an opinion (as never sent to
the 6''ice o' the Chie' Justice. #or is it to be 'or)otten that even i' a decision si)ned by all the other $e$bers (ere thus sub$itted.
the practice traditionally 'ollo(ed is 'or (hoever is Chie' Justice to take a 'e( days 'or the e9pression o' his vie(s i' $inded to do so.
TEEHAN;EE, J., concurrin)*
"re'atory State$ent* ;s stated in the resolution penned by &r. Justice @utierrez, the release in early ;pril o' this year o' the Court1s
decision declarin) null and void respondent co$$ission1s challen)ed su$$ary order 'or closure o' petitioner1s radio station
2Ede'initely attended by co$plete absence o' any hearin) be'ore or a'ter the closure itsel'E3 and )rantin) the petition 'or issuance o' a
(rit o' $andatory in>unction 'or the reopenin) o' the station, (as overtaken by petitioner1s Esuddenly 'iledE $otion to (ithdra( or
dis$iss the petition.
:nitially, &r. Justice @utierrez (as 'or applyin) the Salonga 'or$ula and releasin) nevertheless his si9teen-pa)e e9tended opinion and decision on the $erits. ,e
(as o' the vie(, 'ully shared by $e, 4 that E2+3he need 'or )uidin) principles on constitutionalis$ is particularly keen in critical ti$es and in periods o' transition. +here is then a tendency
to be i$pulsive in the e9ercise o' po(er. +he use o' ille)al shortcuts and the breakdo(n o' traditional restraints and discipline, un'ortunately, is $ost pronounced in troubled ti$es. :t
beco$es necessary 'or the Court to e$phasize the i$portance o' adherence to the $andates o' the Constitution. +he e''orts, no $atter ho( (ell $eanin), to Duell a rebellion or to stave
o'' econo$ic disaster cannot succeed i' they trans)ress basic ri)hts and, there'ore, alienate our people.E 8ut since such approach did not )ain the concurrence o' the $a>ority, he has
replaced his ori)inal ponencia (ith the abbreviated <esolution 2o' a little over 'our pa)es3 no( released, (hich carries the reDuired $a>ority and issues )uidelines E'or the )uidance o'
in'erior courts and ad$inistrative tribunals e9ercisin) Duasi->udicial 'unctions.E
While (ithdra(al o' the petition 'or loss o' interest on petitioner1s part $ay be )ranted, still the Court should uneDuivocally set 'orth
the )uidin) and controllin) precepts or doctrines in pursuance o' its sy$bolic 'unction o' educatin) bench and bar as in Salonga on
the protection and preservation o' basic constitutional ri)hts. ;s stated in $y separate concurrin) opinion, infra, public respondents1
su$$ary closure o' petitioner1s radio station 'ailed to observe the special protection )iven to all 'or$s o' $edia by the due process
and 'reedo$ o' press and $edia clauses o' the Constitution, as (ell as the basic clear and present dan)er test. ;s stated by the no(
Chie' Justice in 4e la ,amara %s. Enage,1 ) the 'act that the case has beco$e $oot Eshould not preclude this +ribunal 'ro$ settin) 'orth in lan)ua)e clear and
un$istakable ... 'or the )uidance o' lo(er court >ud)es Fand other public o''icersG the controllin) and authoritative doctrines that should be observed,E so that 'ull respect $ay be accorded
to basic constitutional ri)hts.
&y separate concurrin) opinion (hich 'ollo(s hereina'ter (as prepared and scheduled 'or pro$ul)ation on or about ;pril 9, 19J/
upon its return on said date to the ponente, &r. Justice @utierrez, 'or trans$ittal to the 6''ice o' the Chie' Justice 'or the purpose. 8ut
this (as overtaken by the 'ilin) o' petitioner1s $otion 'or (ithdra(al or dis$issal o' the petition. ,ence, $y said concurrin) opinion
should be read in such ti$e conte9t 2in the sa$e $anner as in the 1904 $artial la( cases o' A&uino- .r. and 4io(no %s. Enrile, /9
SC<; 1J, 59, Septe$ber 10, 1904, (herein the pro$ul)ation o' the decision and separate opinions ori)inally schedule 'or
Septe$ber 1!, 1904 (as de'erred to the 'ollo(in) (eek (ith the intervenin) release 'ro$ detention o' Senator Jose W Ciokno3.
999 999 999
+he $ain opinion rea''ir$s in lan)ua)e un$istakable that broadcast $edia 2radio and television3 (hile sub>ect to )overn$ent
licensin) 2'or allocation o' the use o' air(aves and 'reDuencies3 and re)ulation 2considerin) their pervasive presence and instant
i$pact3 are eDually protected by the pre'erred 'reedo$s o' speech and o' the press and by the rudi$entary reDuire$ents o' due
process a)ainst arbitrary deprivation o' li'e, liberty and property= that the basic standard 'or restrictin) or punishin) the e9ercise o'
these pre'erred 'reedo$s is the clear and present dan)er test H dan)er o' a serious and i$$inent evil sou)ht to be prevented= that
the su$$ary closure in 6ctober, 19J5 o' petitioner1s radio station 2Ede'initely attended by co$plete absence o' any hearin) be'ore or
a'ter the closure itsel' E3 violated its constitutional ri)hts and $ust there'ore be declared null and void, and conseDuently, the (rit o'
$andatory in>unction 'or the reopenin) o' the station, as prayed 'or, $ust issue.
Con)ratulations are due the ponente Justice ,u)o @utierrez, Jr. (ho secured the Court1s near-unani$ous concurrence in the recent
case o' Salonga %s. 0ano
1
(hich (ent back to the 'unda$entals and stressed, in dischar)e o' the Court1s Esy$bolic 'unction o' educatin)
bench and bar on the e9tent o' protection )iven by constitutional )uaranteesE that E2:3n'initely $ore i$portant than conventional adherence
to )eneral rules o' cri$inal procedure is respect 'or the citizen1s ri)ht to be 'ree not only 'ro$ arbitrary arrest and punish$ent but also 'ro$
un(arranted and ve9atious prosecution. +he inte)rity o' a de$ocratic society is corrupted i' a person is carelessly included in the trial o'
around 'orty persons (hen on the very 'ace o' the record no evidence linkin) hi$ to the alle)ed conspiracy e9ists,E that E ... i' there is any
principle o' the Constitution that $ore i$peratively calls 'or attach$ent than any other it is the principle o' 'ree thou)ht H not 'ree thou)ht
'or those (ho a)ree (ith us but 'reedo$ 'or the thou)ht that (e hate=E that E'reedo$ o' e9pression is a 1pre'erred1 ri)ht and there'ore stands
on a hi)her level than substantive econo$ic or other liberties,E that Ethis $ust be so because the lessons o' history, both political and le)al,
illustrate that 'reedo$ o' thou)ht and speech is the indispensable condition o' nearly every other 'or$ o' 'reedo$. "rotection is especially
$andated 'or political discussions. +his Court is particularly concerned (hen alle)ations are $ade that restraints have been i$posed upon
$ere criticis$s o' )overn$ent and public o''icials. "olitical discussion is essential to the ascertain$ent o' political truth. :t cannot be the
basis o' cri$inal indict$ents=E that there $ust be tolerance o' political hyperbole since Edebate on public issues should be uninhibited,
robust, and (ide open and it $ay (ell include vehe$ent, caustic, and so$eti$es unpleasantly sharp attacks on )overn$ent and public
o''icials,E that Ethe constitutional )uarantees o' 'ree speech and 'ree press do not per$it a State to 'orbid or prescribe advocacy o' the use
o' 'orce or o' la( in violation e9cept (here such advocacy is directed to incitin) or producin) i$$inent la(less action and is likely to incite
or produce such action=E that Epolitical discussion even a$on) those opposed to the present ad$inistration is (ithin the protective clause o'
'reedo$ o' speech and e9pression. +he sa$e cannot be construed as subversive activities per se or as evidence o' $e$bership in a
subversive or)anizationE in the absence o' proo' that Esuch discussion (as in 'urtherance o' any plan to overthro( the )overn$ent throu)h
ille)al $eans=E that, Erespondent court should have taken these 'actors into consideration be'ore concludin) that a pri$a 'acie case e9ists
a)ainst the petitioner. 7vidence $ust not only proceed 'ro$ the $outh o' a credible (itness but it $ust be credible in itsel' such as the
co$$on e9perience and observation o' $ankind can approve as probable under the circu$stances=E and that E>ud)e or 'iscal, there'ore,
should not )o on (ith the prosecution in the hope that so$e credible evidence $i)ht later turn up durin) trial 'or this (ould be a 'la)rant
violation o' a basic ri)ht (hich the courts are created to uphold. :t bears repeatin) that the >udiciary lives up to its $ission by vitalizin) and
not deni)ratin) constitutional ri)hts. So it has been be'ore. :t should continue to be so.E
+he sa$e ponente has no( like(ise obtained the Court1s near-unani$ous approval o' the decision at bar,
2
(hich restates basic and
established constitutional principles under the <ule o' %a( that public o''icials do not possess absolute po(er to su$$arily close do(n a
broadcastin) station nor to arbitrarily deny its application 'or rene(al o' license= that their broad and pere$ptory re)ulatory po(ers E$ust be
e9ercised (ith punctilious re)ard 'or the due process clauseE (hich in the (ords o' the Chie' Justice si)ni'ies E'reedo$ 'ro$ arbitrariness
FandG is the e$bodi$ent o' the sportin) :dea o' 'air play=
3
that radio and television (hich E(ould have little reason 'or e9istence i'
broadcasts are li$ited to bland, obseDuious, or pleasantly entertainin) utterancesE deserve the special protection o' the pre'erred ri)ht o'
'ree press and speech= that co$$ent on and criticis$ o' public o''icials in the conduct o' public a''airs is not to be taken as Eincitin) to
sedition or subversive actsE H that to curb or to punish the e9ercise o' such pre'erred ri)ht o' co$$ent and criticis$ there $ust e9ist the
clear and present dan)er o' a substantive and )rave evil that the State has a clear ri)ht to prevent, and hence, there $ust be a clear
sho(in) to this e''ect o' Ethe (ords used and (hen and ho( they (ere used=E that since the 191J case o' ;.S. %s. /ustos,
5
the Court has
tau)ht that Ethe interest o' society and the $aintenance o' )ood )overn$ent de$and a 'ull discussion o' public a''airs. Co$plete liberty to
co$$ent on the conduct o' public $en is a scalpel in the case o' 'ree speech. +he sharp incision o' its probe relieves the abcesses o'
o''icialdo$= E that the )uarantee o' 'ree speech is a sa'ety valve Eallo(in) parties the opportunity to )ive vent to their vie(s, even i' contrary
to the prevailin) cli$ate o' opinionE (hich is )rounded on E'aith in the po(er o' an appeal to reason by all the peace'ul $eans 'or )ainin)
access to the $indE and Eserves to avert 'orce and e9plosions due to restrictions upon rational $odes o' co$$unication=E
9
and that throu)h
the ri)hts o' 'ree e9pression, 'ree asse$bly and petition, Ethe citizens can participate not $erely in the periodic establish$ent o' the
)overn$ent throu)h their su''ra)e but also in the ad$inistration o' public a''airs as (ell as in the discipline o' abusive public o''icersE and
that since Ethe threat o' sanctions $ay deter the e9ercise Fo' these 1delicate and vulnerable ... and supre$ely precious 'reedo$s1G al$ost as
potently as the actual application o' sanctions, they 1need breathin) space to survive1 per$ittin) )overn$ent re)ulation only 1(ith narro(
speci'icity.
6
+he late Justice Jose ;bad Santos, $artyr o' the Japanese occupation, le't us over hal' a century a)o the le)acy o' his dissent
a)ainst (hat he dee$ed (ere un>usti'ied Einvasions on the part o' the )overn$ent and its e$ployees o' the sanctities o' a $an1s
ho$e and the privacies o' li'eE in 0eople %s. +ubio
7
that the Eco$$endable zeal 2o' internal revenue a)ents3 i' allo(ed to override
constitutional li$itations (ould beco$e 1obno9ious to 'unda$ental principles o' liberty.1 ;nd i' (e are to be saved 'ro$ the sad e9periences
o' so$e countries (hich have constitutions only in na$e, (e $ust insist that )overn$ental authority be e9ercised (ithin constitutional
li$its= 'or, a'ter all, (hat $atters is not so $uch (hat the people (rite in their constitutions as the spirit in (hich they observe their
provisions.E
:n the sa$e vein, the late Chie' Justice <icardo "aras in the land$ark case o' 0rimicias %s. Fugoso
2
en>oined all to abide by the
teachin) o' the 1950 sedition case o' ;. S. %s. Apurado
9
that instances o' Edisorderly conduct by individual $e$bers o' a cro(d Fbe not
seizedG as an e9cuse to characterize the asse$bly as a seditious and tu$ultuous risin) a)ainst the authorities,E 'or Ei' the prosecution be
per$itted to seize upon every instance o' such disorderly conduct by individual $e$bers o' a cro(d as an e9cuse to characterize the
asse$bly as a seditious and tu$ultous risin) a)ainst the authorities, then the ri)ht to asse$ble and to petition 'or redress o' )rievances
(ould beco$e a delusion and snare and the atte$pt to e9ercise it on the $ost ri)hteous occasion and in the $ost peaceable $anner
(ould e9pose all those (ho took part therein to the severest and $ost un$erited punish$ent, i' the purposes (hich they sou)ht to attain
did not happen to be pleasin) to the prosecutin) authorities. :' instances o' disorderly conduct occur on such occasions, the )uilty
individuals should be sou)ht out and punished there'or.E
:ndeed, as : stressed in $y dissentin) opinion in the recent case o' German %s. /arangan,
10
to reDuire the citizen at every step to
assert his ri)hts and to )o to court is to render illusory his ri)hts. ;ll concerned, the )overnors as (ell as the )overned, $ust observe (hat
they have (ritten in their constitution in their very spirit and intent, so that as (ritten by Justice &akasiar in the "8& case
11
Ethe 8ill o'
<i)hts F$i)ht not turn out to beG a useless atte$pt to li$it the po(er o' )overn$ent and cease to be an e''icacious shield a)ainst the
tyranny o' o''icials, o' $a>orities, o' the in'luential and po(er'ul, and o' oli)archs H political, econo$ic or other(ise.E
+he Court1s decision $akes short shri't o' respondents1 procedural ar)u$ents that non-rene(al o' petitioner1s license has $ade the
petition E$oot and acade$icE 2brushed aside as Ean a'terthou)ht or substitute 'or the respondents1 ori)inal position that the closure
(as due to national securityE3 and that $anda$us (ould not lie to co$pel the reopenin) o' the radio station brou)ht about by their
inaction on petitioner1s ti$ely application 'or rene(al o' the license. :t serves notice that in the e9ercise o' the >udicial po(er vested in
it by the Constitution, it (ill issue the eDuitable (rits o' certiorari and $anda$us to do substantial >ustice and restore the status Duo.
:n this case, the su$$ary closure o' petitioner1s radio station in 19J5 havin) been declared null and void and no valid )round 'or
non-rene(al o' its license havin) been sho(n, it is as i' the said license has been duly e9tended up to the end o' the current ter$ or
year. :t is e9pected that respondents (ill 'orth(ith return the crystal o' the trans$itter and place no 'urther obstacle to the pro$pt
reopenin) o' the radio station so that petitioner $ay pick up the broken pieces and ri)ht'ully resu$e its operations 2a'ter al$ost 'ive
years o' closure3 in accordance (ith the >ud)$ent at bar.
ABA3 SANTOS, J., concurrin)*
+he petitioner has 'iled a $otion to (ithdra( its petition 'or the reasons stated in its $otion. +he Court has )ranted the $otion but
this circu$stance should not deter the Court 'ro$ educatin) those (ho (ield po(er (hich i' e9ercised arbitrarily (ill $ake a $ockery
o' the 8ill o' <i)hts.
+he closure o' the petitioner1s radio station on )rounds o' national security (ithout elaboration o' the )rounds and (ithout hearin)
deserves to be conde$ned in no uncertain ter$s 'or it is $ani'est that due process (as not observed. :' there is an :dea (hich
should be i$pressed in the $inds o' those (ho (ield po(er it is that po(er $ust be used in a reasonable $anner. ;rbitrariness $ust
be esche(ed. +he $ain opinion, that o' Justice +eehankee and the case o' Ang 5iba' %s. ,ourt of 3ndustrial +elations, 69 "hil. 6/
F1945G, should be $ade reDuired readin) $aterials 'or public o''icials (ho hu'' and pu'' (ith po(er $akin) the$selves not $erely
obno9ious but dan)erous as (ell.
Se*/+e O*&n&on(
"ERNAN3O, C.J., concurrin)*
: concur in the ponencia o' Justice @utierrez, Jr., notable 'or its reiteration o' the clear and present dan)er principle as the standard
o' li$itation on 'ree speech and press, as decided by a unani$ous court in J.8.%. <eyes v. 8a)atsin).
1
;s $ay be )leaned 'ro$ the votin) o' the Justices, the $a>ority 'avors the vie( that even i' a case (ere $oot and acade$ic, a
state$ent o' the )overnin) principle is appropriate in the resolution o' dis$issal 'or the )uidance not only o' the parties but o' others
si$ilarly situated. +here are three Justices, ho(ever, &akasiar, Concepcion, Jr. and de la Fuente, (ho (ould strictly adhere to the
concept that the case bein) $oot and acade$ic, the appropriate disposition is that o' si$ply dis$issin) the action. +hat is to abide
by the teachin) o' orthodo9 learnin). +he "hilippines, ho(ever, has deviated 'ro$ such a strict vie(. #or is this approach o' recent
vinta)e. ;s early as Ale2andrino %. 8uezon
2
decided in 19!4, this Court, not(ithstandin) the absence o' >urisdiction, e9pressed throu)h
Justice &alcol$ (hat principle o' la( should )overn. Si$ilarly in Osmena- .r. %. 0endatun,
3
not(ithstandin) (ell-'ounded doubts as to
>urisdiction and a 'indin) that the case should be dis$issed 'or bein) $oot and acade$ic, this Court, throu)h the then Justice, later Chie'
Justice 8en)zon, passed upon the le)al Duestion raised. :n that sense, the "hilippines has 'ollo(ed an approach distinct 'ro$ that o' the
Anited States, not(ithstandin) the in'luence o' ;$erican Constitutional la( on our le)al syste$.
;lso let $e state 'or the record that the ori)inal opinion prepared by Justice @utierrez, Jr. could not have been released in ;pril a'ter
the petitioner on &arch !/, 19J/ E'iled a $otion to (ithdra( or dis$iss the petition.E ;'ter that date, so$e $e$bers o' the Court
(anted the $atter discussed ane( as to its appropriate disposition. +hat is the e9planation (hy such an opinion (as never sent to
the 6''ice o' the Chie' Justice. #or is it to be 'or)otten that even i' a decision si)ned by all the other $e$bers (ere thus sub$itted.
the practice traditionally 'ollo(ed is 'or (hoever is Chie' Justice to take a 'e( days 'or the e9pression o' his vie(s i' $inded to do so.
TEEHAN;EE, J., concurrin)*
"re'atory State$ent* ;s stated in the resolution penned by &r. Justice @utierrez, the release in early ;pril o' this year o' the Court1s
decision declarin) null and void respondent co$$ission1s challen)ed su$$ary order 'or closure o' petitioner1s radio station
2Ede'initely attended by co$plete absence o' any hearin) be'ore or a'ter the closure itsel'E3 and )rantin) the petition 'or issuance o' a
(rit o' $andatory in>unction 'or the reopenin) o' the station, (as overtaken by petitioner1s Esuddenly 'iledE $otion to (ithdra( or
dis$iss the petition.
:nitially, &r. Justice @utierrez (as 'or applyin) the Salonga 'or$ula and releasin) nevertheless his si9teen-pa)e e9tended opinion and decision on the $erits. ,e
(as o' the vie(, 'ully shared by $e, 4 that E2+3he need 'or )uidin) principles on constitutionalis$ is particularly keen in critical ti$es and in periods o' transition. +here is then a tendency
to be i$pulsive in the e9ercise o' po(er. +he use o' ille)al shortcuts and the breakdo(n o' traditional restraints and discipline, un'ortunately, is $ost pronounced in troubled ti$es. :t
beco$es necessary 'or the Court to e$phasize the i$portance o' adherence to the $andates o' the Constitution. +he e''orts, no $atter ho( (ell $eanin), to Duell a rebellion or to stave
o'' econo$ic disaster cannot succeed i' they trans)ress basic ri)hts and, there'ore, alienate our people.E 8ut since such approach did not )ain the concurrence o' the $a>ority, he has
replaced his ori)inal ponencia (ith the abbreviated <esolution 2o' a little over 'our pa)es3 no( released, (hich carries the reDuired $a>ority and issues )uidelines E'or the )uidance o'
in'erior courts and ad$inistrative tribunals e9ercisin) Duasi->udicial 'unctions.E
While (ithdra(al o' the petition 'or loss o' interest on petitioner1s part $ay be )ranted, still the Court should uneDuivocally set 'orth
the )uidin) and controllin) precepts or doctrines in pursuance o' its sy$bolic 'unction o' educatin) bench and bar as in Salonga on
the protection and preservation o' basic constitutional ri)hts. ;s stated in $y separate concurrin) opinion, infra, public respondents1
su$$ary closure o' petitioner1s radio station 'ailed to observe the special protection )iven to all 'or$s o' $edia by the due process
and 'reedo$ o' press and $edia clauses o' the Constitution, as (ell as the basic clear and present dan)er test. ;s stated by the no(
Chie' Justice in 4e la ,amara %s. Enage,1 ) the 'act that the case has beco$e $oot Eshould not preclude this +ribunal 'ro$ settin) 'orth in lan)ua)e clear and
un$istakable ... 'or the )uidance o' lo(er court >ud)es Fand other public o''icersG the controllin) and authoritative doctrines that should be observed,E so that 'ull respect $ay be accorded
to basic constitutional ri)hts.
&y separate concurrin) opinion (hich 'ollo(s hereina'ter (as prepared and scheduled 'or pro$ul)ation on or about ;pril 9, 19J/
upon its return on said date to the ponente, &r. Justice @utierrez, 'or trans$ittal to the 6''ice o' the Chie' Justice 'or the purpose. 8ut
this (as overtaken by the 'ilin) o' petitioner1s $otion 'or (ithdra(al or dis$issal o' the petition. ,ence, $y said concurrin) opinion
should be read in such ti$e conte9t 2in the sa$e $anner as in the 1904 $artial la( cases o' A&uino- .r. and 4io(no %s. Enrile, /9
SC<; 1J, 59, Septe$ber 10, 1904, (herein the pro$ul)ation o' the decision and separate opinions ori)inally schedule 'or
Septe$ber 1!, 1904 (as de'erred to the 'ollo(in) (eek (ith the intervenin) release 'ro$ detention o' Senator Jose W Ciokno3.
999 999 999
+he $ain opinion rea''ir$s in lan)ua)e un$istakable that broadcast $edia 2radio and television3 (hile sub>ect to )overn$ent
licensin) 2'or allocation o' the use o' air(aves and 'reDuencies3 and re)ulation 2considerin) their pervasive presence and instant
i$pact3 are eDually protected by the pre'erred 'reedo$s o' speech and o' the press and by the rudi$entary reDuire$ents o' due
process a)ainst arbitrary deprivation o' li'e, liberty and property= that the basic standard 'or restrictin) or punishin) the e9ercise o'
these pre'erred 'reedo$s is the clear and present dan)er test H dan)er o' a serious and i$$inent evil sou)ht to be prevented= that
the su$$ary closure in 6ctober, 19J5 o' petitioner1s radio station 2Ede'initely attended by co$plete absence o' any hearin) be'ore or
a'ter the closure itsel' E3 violated its constitutional ri)hts and $ust there'ore be declared null and void, and conseDuently, the (rit o'
$andatory in>unction 'or the reopenin) o' the station, as prayed 'or, $ust issue.
Con)ratulations are due the ponente Justice ,u)o @utierrez, Jr. (ho secured the Court1s near-unani$ous concurrence in the recent
case o' Salonga %s. 0ano
1
(hich (ent back to the 'unda$entals and stressed, in dischar)e o' the Court1s Esy$bolic 'unction o' educatin)
bench and bar on the e9tent o' protection )iven by constitutional )uaranteesE that E2:3n'initely $ore i$portant than conventional adherence
to )eneral rules o' cri$inal procedure is respect 'or the citizen1s ri)ht to be 'ree not only 'ro$ arbitrary arrest and punish$ent but also 'ro$
un(arranted and ve9atious prosecution. +he inte)rity o' a de$ocratic society is corrupted i' a person is carelessly included in the trial o'
around 'orty persons (hen on the very 'ace o' the record no evidence linkin) hi$ to the alle)ed conspiracy e9ists,E that E ... i' there is any
principle o' the Constitution that $ore i$peratively calls 'or attach$ent than any other it is the principle o' 'ree thou)ht H not 'ree thou)ht
'or those (ho a)ree (ith us but 'reedo$ 'or the thou)ht that (e hate=E that E'reedo$ o' e9pression is a 1pre'erred1 ri)ht and there'ore stands
on a hi)her level than substantive econo$ic or other liberties,E that Ethis $ust be so because the lessons o' history, both political and le)al,
illustrate that 'reedo$ o' thou)ht and speech is the indispensable condition o' nearly every other 'or$ o' 'reedo$. "rotection is especially
$andated 'or political discussions. +his Court is particularly concerned (hen alle)ations are $ade that restraints have been i$posed upon
$ere criticis$s o' )overn$ent and public o''icials. "olitical discussion is essential to the ascertain$ent o' political truth. :t cannot be the
basis o' cri$inal indict$ents=E that there $ust be tolerance o' political hyperbole since Edebate on public issues should be uninhibited,
robust, and (ide open and it $ay (ell include vehe$ent, caustic, and so$eti$es unpleasantly sharp attacks on )overn$ent and public
o''icials,E that Ethe constitutional )uarantees o' 'ree speech and 'ree press do not per$it a State to 'orbid or prescribe advocacy o' the use
o' 'orce or o' la( in violation e9cept (here such advocacy is directed to incitin) or producin) i$$inent la(less action and is likely to incite
or produce such action=E that Epolitical discussion even a$on) those opposed to the present ad$inistration is (ithin the protective clause o'
'reedo$ o' speech and e9pression. +he sa$e cannot be construed as subversive activities per se or as evidence o' $e$bership in a
subversive or)anizationE in the absence o' proo' that Esuch discussion (as in 'urtherance o' any plan to overthro( the )overn$ent throu)h
ille)al $eans=E that, Erespondent court should have taken these 'actors into consideration be'ore concludin) that a pri$a 'acie case e9ists
a)ainst the petitioner. 7vidence $ust not only proceed 'ro$ the $outh o' a credible (itness but it $ust be credible in itsel' such as the
co$$on e9perience and observation o' $ankind can approve as probable under the circu$stances=E and that E>ud)e or 'iscal, there'ore,
should not )o on (ith the prosecution in the hope that so$e credible evidence $i)ht later turn up durin) trial 'or this (ould be a 'la)rant
violation o' a basic ri)ht (hich the courts are created to uphold. :t bears repeatin) that the >udiciary lives up to its $ission by vitalizin) and
not deni)ratin) constitutional ri)hts. So it has been be'ore. :t should continue to be so.E
+he sa$e ponente has no( like(ise obtained the Court1s near-unani$ous approval o' the decision at bar,
2
(hich restates basic and
established constitutional principles under the <ule o' %a( that public o''icials do not possess absolute po(er to su$$arily close do(n a
broadcastin) station nor to arbitrarily deny its application 'or rene(al o' license= that their broad and pere$ptory re)ulatory po(ers E$ust be
e9ercised (ith punctilious re)ard 'or the due process clauseE (hich in the (ords o' the Chie' Justice si)ni'ies E'reedo$ 'ro$ arbitrariness
FandG is the e$bodi$ent o' the sportin) :dea o' 'air play=
3
that radio and television (hich E(ould have little reason 'or e9istence i'
broadcasts are li$ited to bland, obseDuious, or pleasantly entertainin) utterancesE deserve the special protection o' the pre'erred ri)ht o'
'ree press and speech= that co$$ent on and criticis$ o' public o''icials in the conduct o' public a''airs is not to be taken as Eincitin) to
sedition or subversive actsE H that to curb or to punish the e9ercise o' such pre'erred ri)ht o' co$$ent and criticis$ there $ust e9ist the
clear and present dan)er o' a substantive and )rave evil that the State has a clear ri)ht to prevent, and hence, there $ust be a clear
sho(in) to this e''ect o' Ethe (ords used and (hen and ho( they (ere used=E that since the 191J case o' ;.S. %s. /ustos,
5
the Court has
tau)ht that Ethe interest o' society and the $aintenance o' )ood )overn$ent de$and a 'ull discussion o' public a''airs. Co$plete liberty to
co$$ent on the conduct o' public $en is a scalpel in the case o' 'ree speech. +he sharp incision o' its probe relieves the abcesses o'
o''icialdo$= E that the )uarantee o' 'ree speech is a sa'ety valve Eallo(in) parties the opportunity to )ive vent to their vie(s, even i' contrary
to the prevailin) cli$ate o' opinionE (hich is )rounded on E'aith in the po(er o' an appeal to reason by all the peace'ul $eans 'or )ainin)
access to the $indE and Eserves to avert 'orce and e9plosions due to restrictions upon rational $odes o' co$$unication= E
9
and that
throu)h the ri)hts o' 'ree e9pression, 'ree asse$bly and petition, Ethe citizens can participate not $erely in the periodic establish$ent o' the
)overn$ent throu)h their su''ra)e but also in the ad$inistration o' public a''airs as (ell as in the discipline o' abusive public o''icersE and
that since Ethe threat o' sanctions $ay deter the e9ercise Fo' these 1delicate and vulnerable ... and supre$ely precious 'reedo$s1G al$ost as
potently as the actual application o' sanctions, they 1need breathin) space to survive1 per$ittin) )overn$ent re)ulation only 1(ith narro(
speci'icity.
6
+he late Justice Jose ;bad Santos, $artyr o' the Japanese occupation, le't us over hal' a century a)o the le)acy o' his dissent
a)ainst (hat he dee$ed (ere un>usti'ied Einvasions on the part o' the )overn$ent and its e$ployees o' the sanctities o' a $an1s
ho$e and the privacies o' li'eE in 0eople %s. +ubio
7
that the Eco$$endable zeal 2o' internal revenue a)ents3 i' allo(ed to override
constitutional li$itations (ould beco$e 1obno9ious to 'unda$ental principles o' liberty.1 ;nd i' (e are to be saved 'ro$ the sad e9periences
o' so$e countries (hich have constitutions only in na$e, (e $ust insist that )overn$ental authority be e9ercised (ithin constitutional
li$its= 'or, a'ter all, (hat $atters is not so $uch (hat the people (rite in their constitutions as the spirit in (hich they observe their
provisions.E
:n the sa$e vein, the late Chie' Justice <icardo "aras in the land$ark case o' 0rimicias %s. Fugoso
2
en>oined all to abide by the
teachin) o' the 1950 sedition case o' ;. S. %s. Apurado
9
that instances o' Edisorderly conduct by individual $e$bers o' a cro(d Fbe not
seizedG as an e9cuse to characterize the asse$bly as a seditious and tu$ultuous risin) a)ainst the authorities,E 'or Ei' the prosecution be
per$itted to seize upon every instance o' such disorderly conduct by individual $e$bers o' a cro(d as an e9cuse to characterize the
asse$bly as a seditious and tu$ultous risin) a)ainst the authorities, then the ri)ht to asse$ble and to petition 'or redress o' )rievances
(ould beco$e a delusion and snare and the atte$pt to e9ercise it on the $ost ri)hteous occasion and in the $ost peaceable $anner
(ould e9pose all those (ho took part therein to the severest and $ost un$erited punish$ent, i' the purposes (hich they sou)ht to attain
did not happen to be pleasin) to the prosecutin) authorities. :' instances o' disorderly conduct occur on such occasions, the )uilty
individuals should be sou)ht out and punished there'or.E
:ndeed, as : stressed in $y dissentin) opinion in the recent case o' German %s. /arangan,
10
to reDuire the citizen at every step to
assert his ri)hts and to )o to court is to render illusory his ri)hts. ;ll concerned, the )overnors as (ell as the )overned, $ust observe (hat
they have (ritten in their constitution in their very spirit and intent, so that as (ritten by Justice &akasiar in the "8& case
11
Ethe 8ill o'
<i)hts F$i)ht not turn out to beG a useless atte$pt to li$it the po(er o' )overn$ent and cease to be an e''icacious shield a)ainst the
tyranny o' o''icials, o' $a>orities, o' the in'luential and po(er'ul, and o' oli)archs H political, econo$ic or other(ise.E
+he Court1s decision $akes short shri't o' respondents1 procedural ar)u$ents that non-rene(al o' petitioner1s license has $ade the
petition E$oot and acade$icE 2brushed aside as Ean a'terthou)ht or substitute 'or the respondents1 ori)inal position that the closure
(as due to national securityE3 and that $anda$us (ould not lie to co$pel the reopenin) o' the radio station brou)ht about by their
inaction on petitioner1s ti$ely application 'or rene(al o' the license. :t serves notice that in the e9ercise o' the >udicial po(er vested in
it by the Constitution, it (ill issue the eDuitable (rits o' certiorari and $anda$us to do substantial >ustice and restore the status Duo.
:n this case, the su$$ary closure o' petitioner1s radio station in 19J5 havin) been declared null and void and no valid )round 'or
non-rene(al o' its license havin) been sho(n, it is as i' the said license has been duly e9tended up to the end o' the current ter$ or
year. :t is e9pected that respondents (ill 'orth(ith return the crystal o' the trans$itter and place no 'urther obstacle to the pro$pt
reopenin) o' the radio station so that petitioner $ay pick up the broken pieces and ri)ht'ully resu$e its operations 2a'ter al$ost 'ive
years o' closure3 in accordance (ith the >ud)$ent at bar.
ABA3 SANTOS, J., concurrin)*
+he petitioner has 'iled a $otion to (ithdra( its petition 'or the reasons stated in its $otion. +he Court has )ranted the $otion but
this circu$stance should not deter the Court 'ro$ educatin) those (ho (ield po(er (hich i' e9ercised arbitrarily (ill $ake a $ockery
o' the 8ill o' <i)hts.
+he closure o' the petitioner1s radio station on )rounds o' national security (ithout elaboration o' the )rounds and (ithout hearin)
deserves to be conde$ned in no uncertain ter$s 'or it is $ani'est that due process (as not observed. :' there is an :dea (hich
should be i$pressed in the $inds o' those (ho (ield po(er it is that po(er $ust be used in a reasonable $anner. ;rbitrariness $ust
be esche(ed. +he $ain opinion, that o' Justice +eehankee and the case o' Ang 5iba' %s. ,ourt of 3ndustrial +elations, 69 "hil. 6/
F1945G, should be $ade reDuired readin) $aterials 'or public o''icials (ho hu'' and pu'' (ith po(er $akin) the$selves not $erely
obno9ious but dan)erous as (ell.
"oo+no+e(
1 +he reDuire$ents are* 213 the ri)ht to a hearin), (hich includes the ri)ht to present one1s case and sub$it
evidence in support thereo'= 2!3 the tribunal $ust consider the evidence presented= 23 the decision $ust
have so$ethin) to support itsel'= 243 the evidence $ust be substantial. Substantial evidence $eans such
reasonable evidence as a reasonable $ind $i)ht accept as adeDuate to support a conclusion= 2/3 the
decision $ust be based on the evidence presented at the hearin), or at least contained in the record and
disclosed to the parties a''ected= 263 the tribunal or body or any o' its >ud)es $ust act on its or his o(n
independent consideration o' the la( and 'acts o' the controversy and not si$ply accept the vie(s o' a
subordinate= 203 the board or body should, in all controversial Duestions, render its decision in such a $anner
that the parties to the proceedin) can kno( the various issues involved, and the reasons 'or the decision
rendered.
F7<#;#C6, C.J.
1 @.<.#o.6/66, #ove$ber 9,19J,1!/ SC<; //.
! 46 "hil. J.
159 "hil. J6 219653.
+77,;#.77, J.
a :n Salon)a vs. "atio, @.<. #o. /9/!4, February 1J, 19J/, (hile the prosecutors had secured the dis$issal
by the trial court o' the Duestioned cri$inal char)es a)ainst petitioner Jovito Salon)a be'ore our decision
orderin) such dis$issal could be pro$ul)ated, the Court nevertheless issued the decision rulin) sDuarely on
the $erits Eco)nizant o' the need to educate prosecutors and >ud)es that they $ust be zealously concerned
'or the ri)hts o' the accused be'ore a cri$inal prosecution is initiated.E
b See $y separate opinions in Caliete, @.<. #o. 6006, pro$ul)ated ;u)ust 16, 19J4, and Sar$iento, @.<.
#o. 6!119, pro$ul)ated ;u)ust !0, 19J4, (here on the issue o' the e''ect o' a decision o' acDuittal upon a
"C6 : dissented 'ro$ the per'unctory $a>ority resolution dis$issin) the case as $oot because the acDuitted
de'endants (ere 'inally released several a)onizin) $onths a'ter their acDuittal, on the )round that such
Edecisive and 'unda$ental issue o' public interest and i$portance a''ectin) the very liberties o' the people . . .
de$ands to be resolved, rather than e$asculated (ith a dis$issal o' the case as $oot, 'or the )uidance o'
public respondents and all concerned. E
c 41 SC<; 1, 4 219013= see also ";CA vs. Secretary o' 7ducation, 90 "hil. J56= @onzales vs. &arcos, 6/
SC<; 6!4= and ;Duino vs. 7nrile, /9 SC<; 1J.
1 @.<. #o. /9/!4, Feb. 1J, 19J/. 7leven $e$bers concurred (ith abstentions o' Justices ;Duino, Ce la
Fuente and ;la$pay.
! +(elve $e$bers concurred, (ith abstentions o' Justices ;Duino and Concepcion, Jr.
7r$ita-&alate ,otel M &otel 6perators1 ;ss1n. vs. City &ayor, !5 SC<; J49.
4 0 "hil. 01.
/ J.8.%. <eyes vs. 8a)atsin), 1!/ SC<; // 219J3, per Fernando, C.J.
6 "8& 7$ployees 6r)anization vs. "8& Co., :nc., /1 SC<; 1J9, per &akasiar, J.
0 /0 "hil. J4 219!3.
J J5 "hil. 01 2194J3.
9 0 "hil. 4!!, 4!6, per Carson, J.
15 @.<. #o. 6JJ!J, pro$. $arch !0,19J/.
11 Supra, see 'n. 6.
+he %a(phil "ro>ect - ;rellano %a( Foundation
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PRE2IE"S
NEW YORK TIMES CO. V. SULLIVAN
567 U.S. 89:
Ne. Y(*; T&0e! C(. <. S$%%&<an (N(. 5=)
A*'$ed> 3an$a*, 7, ?=7:
De&ded> Ma*# =, ?=7:
865 A%a. 797, ?:: S(.8d 89, *e<e*!ed and *e0anded.
S,%%a-$!
O+&n&(n , Erennan
C(n$**ene , Ela!0
C(n$**ene , %oldberg
S,%%a-$!
&espondent, an ele!ted oC!ial in Montgomer1, Alabama, broug#t suit in a state !ourt
alleging t#at #e #ad been libeled b1 an advertisement in !orporate petitionerPs
ne,spaper, t#e te*t o+ ,#i!# appeared over t#e names o+ t#e +our individual petitioners
and man1 ot#ers. "#e advertisement in!luded statements, some o+ ,#i!# ,ere +alse,
about poli!e a!tion allegedl1 dire!ted against students ,#o parti!ipated in a !ivil rig#ts
demonstration and against a leader o+ t#e !ivil rig#ts movementG respondent !laimed
t#e statements re+erred to #im be!ause #is duties in!luded supervision o+ t#e poli!e
department. "#e trial udge instru!ted t#e ur1 t#at su!# statements ,ere Qlibelous per
se,Q legal inur1 being implied ,it#out proo+ o+ a!tual damages, and t#at, +or t#e
purpose o+ !ompensator1 damages, mali!e ,as presumed, so t#at su!# damages !ould
be a,arded against petitioners i+ t#e statements ,ere +ound to #ave been publis#ed b1
t#em and to #ave related to respondent. As to punitive damages, t#e udge instru!ted
t#at mere negligen!e ,as not eviden!e o+ a!tual mali!e, and ,ould not usti+1 an a,ard
o+ punitive damagesG #e re+used to instru!t t#at a!tual intent to #arm or re!0lessness
#ad to be +ound be+ore punitive damages !ould be a,arded, or t#at a verdi!t +or
respondent s#ould diAerentiate bet,een !ompensator1 and punitive damages. "#e ur1
+ound +or respondent, and t#e State Supreme Court aCrmed.
Held: A State !annot, under t#e =irst and =ourteent# Amendments, a,ard damages to a
publi! oC!ial +or de+amator1 +alse#ood relating to #is oC!ial !ondu!t unless #e proves
Qa!tual mali!eQ -- t#at t#e statement ,as made ,it# 0no,ledge o+ its +alsit1 or ,it#
re!0less disregard o+ ,#et#er it ,as true or +alse. Pp. 'F(-'J'.
9a< Appli!ation b1 state !ourts o+ a rule o+ la,, ,#et#er statutor1 or not, to a,ard a
udgment in a !ivil a!tion, is Qstate a!tionQ under t#e =ourteent# Amendment. P. 'F(.
9b< B*pression does not lose !onstitutional prote!tion to ,#i!# it ,ould ot#er,ise be
entitled be!ause it appears in t#e +orm o+ a paid advertisement. Pp. 'F(-'FF. @+899A
9!< =a!tual error, !ontent de+amator1 o+ oC!ial reputation, or bot#, are insuC!ient to
,arrant an a,ard o+ damages +or +alse statements unless Qa!tual mali!eQ -- 0no,ledge
t#at statements are +alse or in re!0less disregard o+ t#e trut# -- is alleged and proved.
Pp. '2J-'43.
9d< State !ourt udgment entered upon a general verdi!t ,#i!# does not diAerentiate
bet,een punitive damages, as to ,#i!#, under state la,, a!tual mali!e must be proved,
and general damages, as to ,#i!# it is Qpresumed,Q pre!ludes an1 determination as to
t#e basis o+ t#e verdi!t, and reHuires reversal, ,#ere presumption o+ mali!e is
in!onsistent ,it# +ederal !onstitutional reHuirements. P. '45.
9e< "#e eviden!e ,as !onstitutionall1 insuC!ient to support t#e udgment +or
respondent, sin!e it +ailed to support a 7nding t#at t#e statements ,ere made ,it#
a!tual mali!e or t#at t#e1 related to respondent. Pp. '4(-'J'.
@+897A
TOP
O+&n&(n
E&B$$A$, J., Dpinion o+ t#e Court
M&. JLS"?CB E&B$$A$ delivered t#e opinion o+ t#e Court.
Ie are reHuired in t#is !ase to determine +or t#e 7rst time t#e e*tent to ,#i!# t#e
!onstitutional prote!tions +or spee!# and press limit a StatePs po,er to a,ard damages
in a libel a!tion broug#t b1 a publi! oC!ial against !riti!s o+ #is oC!ial !ondu!t.
&espondent >. E. Sullivan is one o+ t#e t#ree ele!ted Commissioners o+ t#e Cit1 o+
Montgomer1, Alabama. 8e testi7ed t#at #e ,as
Commissioner o+ Publi! AAairs, and t#e duties are supervision o+ t#e Poli!e Department,
=ire Department, Department o+ Cemeter1 and Department o+ S!ales.
8e broug#t t#is !ivil libel a!tion against t#e +our individual petitioners, ,#o are $egroes
and Alabama !lerg1men, and against petitioner t#e $e, Yor0 "imes Compan1, a $e,
Yor0 !orporation ,#i!# publis#es t#e $e, Yor0 "imes, a dail1 ne,spaper. A ur1 in t#e
Cir!uit Court o+ Montgomer1 Count1 a,arded #im damages o+ R()),))), t#e +ull amount
!laimed, against all t#e petitioners, and t#e Supreme Court o+ Alabama aCrmed. '23
Ala. F(F, .55 So.'d '(.
&espondentPs !omplaint alleged t#at #e #ad been libeled b1 statements in a +ull-page
advertisement t#at ,as !arried in t#e $e, Yor0 "imes on Mar!# 'J, .JF).
@n?A
Bntitled
Q8eed "#eir &ising @oi!es,Q t#e advertisement began b1 stating t#at,
As t#e ,#ole ,orld 0no,s b1 no,, t#ousands o+ Sout#ern $egro students are engaged
in ,idespread nonviolent demonstrations in positive aCrmation o+ t#e rig#t to live in
#uman dignit1 as guaranteed b1 t#e L.S. Constitution and t#e Eill o+ &ig#ts.
?t ,ent on to !#arge t#at,
in t#eir eAorts to up#old t#ese guarantees, t#e1 are being met b1 an unpre!edented
,ave o+ terror b1 t#ose ,#o ,ould den1 and negate t#at do!ument ,#i!# t#e ,#ole
,orld loo0s upon as setting t#e pattern +or modern +reedom. . . .
Su!!eeding @+896A paragrap#s purported to illustrate t#e Q,ave o+ terrorQ b1 des!ribing
!ertain alleged events. "#e te*t !on!luded ,it# an appeal +or +unds +or t#ree purposes:
support o+ t#e student movement, Qt#e struggle +or t#e rig#t to vote,Q and t#e legal
de+ense o+ Dr. Martin >ut#er Sing, Jr., leader o+ t#e movement, against a perur1
indi!tment t#en pending in Montgomer1.
"#e te*t appeared over t#e names o+ F5 persons, man1 ,idel1 0no,n +or t#eir a!tivities
in publi! aAairs, religion, trade unions, and t#e per+orming arts. Eelo, t#ese names, and
under a line reading QIe in t#e sout# ,#o are struggling dail1 +or dignit1 and +reedom
,arml1 endorse t#is appeal,Q appeared t#e names o+ t#e +our individual petitioners and
o+ .F ot#er persons, all but t,o o+ ,#om ,ere identi7ed as !lerg1men in various
Sout#ern !ities. "#e advertisement ,as signed at t#e bottom o+ t#e page b1 t#e
QCommittee to De+end Martin >ut#er Sing and t#e Struggle +or =reedom in t#e Sout#,Q
and t#e oC!ers o+ t#e Committee ,ere listed.
D+ t#e .) paragrap#s o+ te*t in t#e advertisement, t#e t#ird and a portion o+ t#e si*t#
,ere t#e basis o+ respondentPs !laim o+ libel. "#e1 read as +ollo,s:
"#ird paragrap#:
?n Montgomer1, Alabama, a+ter students sang QM1 Countr1, P"is o+ "#eeQ on t#e State
Capitol steps, t#eir leaders ,ere e*pelled +rom s!#ool, and tru!0loads o+ poli!e armed
,it# s#otguns and tear-gas ringed t#e Alabama State College Campus. I#en t#e entire
student bod1 protested to state aut#orities b1 re+using to reregister, t#eir dining #all
,as padlo!0ed in an attempt to starve t#em into submission.
Si*t# paragrap#:
Again and again, t#e Sout#ern violators #ave ans,ered Dr. SingPs pea!e+ul protests ,it#
intimidation and violen!e. "#e1 #ave bombed #is #ome, almost 0illing #is ,i+e and !#ild.
"#e1 #ave @+89BA assaulted #is person. "#e1 #ave arrested #im seven times -- +or
Qspeeding,Q QloiteringQ and similar QoAenses.Q And no, t#e1 #ave !#arged #im ,it#
Qperur1Q -- a felony under ,#i!# t#e1 !ould imprison #im +or ten years. . . .
Alt#oug# neit#er o+ t#ese statements mentions respondent b1 name, #e !ontended t#at
t#e ,ord Qpoli!eQ in t#e t#ird paragrap# re+erred to #im as t#e Montgomer1
Commissioner ,#o supervised t#e Poli!e Department, so t#at #e ,as being a!!used o+
QringingQ t#e !ampus ,it# poli!e. 8e +urt#er !laimed t#at t#e paragrap# ,ould be read
as imputing to t#e poli!e, and #en!e to #im, t#e padlo!0ing o+ t#e dining #all in order to
starve t#e students into submission.
@n8A
As to t#e si*t# paragrap#, #e !ontended t#at,
sin!e arrests are ordinaril1 made b1 t#e poli!e, t#e statement Q"#e1 #ave arrested -Dr.
Sing/ seven timesQ ,ould be read as re+erring to #imG #e +urt#er !ontended t#at t#e
Q"#e1Q ,#o did t#e arresting ,ould be eHuated ,it# t#e Q"#e1Q ,#o !ommitted t#e
ot#er des!ribed a!ts and ,it# t#e QSout#ern violators.Q "#us, #e argued, t#e paragrap#
,ould be read as a!!using t#e Montgomer1 poli!e, and #en!e #im, o+ ans,ering Dr.
SingPs protests ,it# Qintimidation and violen!e,Q bombing #is #ome, assaulting #is
person, and !#arging #im ,it# perur1. &espondent and si* ot#er Montgomer1 residents
testi7ed t#at t#e1 read some or all o+ t#e statements as re+erring to #im in #is !apa!it1
as Commissioner.
?t is un!ontroverted t#at some o+ t#e statements !ontained in t#e t,o paragrap#s ,ere
not a!!urate des!riptions o+ events ,#i!# o!!urred in Montgomer1. Alt#oug# $egro
students staged a demonstration on t#e State Capitol steps, t#e1 sang t#e $ational
Ant#em and not QM1 @+89=A Countr1, P"is o+ "#ee.Q Alt#oug# nine students ,ere
e*pelled b1 t#e State Eoard o+ Bdu!ation, t#is ,as not +or leading t#e demonstration at
t#e Capitol, but +or demanding servi!e at a lun!# !ounter in t#e Montgomer1 Count1
Court#ouse on anot#er da1. $ot t#e entire student bod1, but most o+ it, #ad protested
t#e e*pulsion, not b1 re+using to register, but b1 bo1!otting !lasses on a single da1G
virtuall1 all t#e students did register +or t#e ensuing semester. "#e !ampus dining #all
,as not padlo!0ed on an1 o!!asion, and t#e onl1 students ,#o ma1 #ave been barred
+rom eating t#ere ,ere t#e +e, ,#o #ad neit#er signed a preregistration appli!ation nor
reHuested temporar1 meal ti!0ets. Alt#oug# t#e poli!e ,ere deplo1ed near t#e !ampus
in large numbers on t#ree o!!asions, t#e1 did not at an1 time QringQ t#e !ampus, and
t#e1 ,ere not !alled to t#e !ampus in !onne!tion ,it# t#e demonstration on t#e State
Capitol steps, as t#e t#ird paragrap# implied. Dr. Sing #ad not been arrested seven
times, but onl1 +our, and alt#oug# #e !laimed to #ave been assaulted some 1ears
earlier in !onne!tion ,it# #is arrest +or loitering outside a !ourtroom, one o+ t#e oC!ers
,#o made t#e arrest denied t#at t#ere ,as su!# an assault.
Dn t#e premise t#at t#e !#arges in t#e si*t# paragrap# !ould be read as re+erring to
#im, respondent ,as allo,ed to prove t#at #e #ad not parti!ipated in t#e events
des!ribed. Alt#oug# Dr. SingPs #ome #ad, in +a!t, been bombed t,i!e ,#en #is ,i+e and
!#ild ,ere t#ere, bot# o+ t#ese o!!asions antedated respondentPs tenure as
Commissioner, and t#e poli!e ,ere not onl1 not impli!ated in t#e bombings, but #ad
made ever1 eAort to appre#end t#ose ,#o ,ere. "#ree o+ Dr. SingPs +our arrests too0
pla!e be+ore respondent be!ame Commissioner. Alt#oug# Dr. Sing #ad, in +a!t, been
indi!ted 9#e ,as subseHuentl1 a!Huitted< on t,o !ounts o+ perur1, ea!# o+ ,#i!#
!arried a possible 7ve-1ear senten!e, respondent #ad not#ing to do ,it# pro!uring t#e
indi!tment. @+87CA
&espondent made no eAort to prove t#at #e suAered a!tual pe!uniar1 loss as a result o+
t#e alleged libel.
@n5A
Dne o+ #is ,itnesses, a +ormer emplo1er, testi7ed t#at, i+ #e #ad
believed t#e statements, #e doubted ,#et#er #e Q,ould ,ant to be asso!iated ,it#
an1bod1 ,#o ,ould be a part1 to su!# t#ings t#at are stated in t#at ad,Q and t#at #e
,ould not reemplo1 respondent i+ #e believed Qt#at #e allo,ed t#e Poli!e Department to
do t#e t#ings t#at t#e paper sa1 #e did.Q Eut neit#er t#is ,itness nor an1 o+ t#e ot#ers
testi7ed t#at #e #ad a!tuall1 believed t#e statements in t#eir supposed re+eren!e to
respondent. "#e !ost o+ t#e advertisement ,as appro*imatel1 R54)), and it ,as
publis#ed b1 t#e "imes upon an order +rom a $e, Yor0 advertising agen!1 a!ting +or t#e
signator1 Committee. "#e agen!1 submitted t#e advertisement ,it# a letter +rom A.
P#ilip &andolp#, C#airman o+ t#e Committee, !erti+1ing t#at t#e persons ,#ose names
appeared on t#e advertisement #ad given t#eir permission. Mr. &andolp# ,as 0no,n to
t#e "imesP Advertising A!!eptabilit1 Department as a responsible person, and, in
a!!epting t#e letter as suC!ient proo+ o+ aut#orization, it +ollo,ed its establis#ed
pra!ti!e. "#ere ,as testimon1 t#at t#e !op1 o+ t#e advertisement ,#i!# a!!ompanied
t#e letter listed onl1 t#e F5 names appearing under t#e te*t, and t#at t#e statement,
QIe in t#e sout# . . . ,arml1 endorse t#is appeal,Q and t#e list o+ names t#ereunder,
,#i!# in!luded t#ose o+ t#e individual petitioners, ,ere subseHuentl1 added ,#en t#e
7rst proo+ o+ t#e advertisement ,as re!eived. Ba!# o+ t#e individual petitioners testi7ed
t#at #e #ad not aut#orized t#e use o+ #is name, and t#at #e #ad been una,are o+ its
use until re!eipt o+ respondentPs demand +or a retra!tion. "#e manager o+ t#e
Advertising A!!eptabilit1 @+87?A Department testi7ed t#at #e #ad approved t#e
advertisement +or publi!ation be!ause #e 0ne, not#ing to !ause #im to believe t#at
an1t#ing in it ,as +alse, and be!ause it bore t#e endorsement o+ Qa number o+ people
,#o are ,ell 0no,n and ,#ose reputationQ #e Q#ad no reason to Huestion.Q $eit#er #e
nor an1one else at t#e "imes made an eAort to !on7rm t#e a!!ura!1 o+ t#e
advertisement, eit#er b1 !#e!0ing it against re!ent "imes ne,s stories relating to some
o+ t#e des!ribed events or b1 an1 ot#er means.
Alabama la, denies a publi! oC!er re!over1 o+ punitive damages in a libel a!tion
broug#t on a!!ount o+ a publi!ation !on!erning #is oC!ial !ondu!t unless #e 7rst ma0es
a ,ritten demand +or a publi! retra!tion and t#e de+endant +ails or re+uses to !ompl1.
Alabama Code, "it. 2, O J.5. &espondent served su!# a demand upon ea!# o+ t#e
petitioners. $one o+ t#e individual petitioners responded to t#e demand, primaril1
be!ause ea!# too0 t#e position t#at #e #ad not aut#orized t#e use o+ #is name on t#e
advertisement, and t#ere+ore #ad not publis#ed t#e statements t#at respondent alleged
#ad libeled #im. "#e "imes did not publis# a retra!tion in response to t#e demand, but
,rote respondent a letter stating, among ot#er t#ings, t#at Q,e . . . are some,#at
puzzled as to #o, 1ou t#in0 t#e statements in an1 ,a1 reNe!t on 1ou,Q and Q1ou mig#t,
i+ 1ou desire, let us 0no, in ,#at respe!t 1ou !laim t#at t#e statements in t#e
advertisement reNe!t on 1ou.Q &espondent 7led t#is suit a +e, da1s later ,it#out
ans,ering t#e letter. "#e "imes did, #o,ever, subseHuentl1 publis# a retra!tion o+ t#e
advertisement upon t#e demand o+ %overnor Jo#n Patterson o+ Alabama, ,#o asserted
t#at t#e publi!ation !#arged #im ,it#
grave mis!ondu!t and . . . improper a!tions and omissions as %overnor o+ Alabama and
B*-DC!io C#airman o+ t#e State Eoard o+ Bdu!ation o+ Alabama.
I#en as0ed to e*plain ,#1 t#ere #ad been a retra!tion +or t#e %overnor but not +or
respondent, t#e @+878A Se!retar1 o+ t#e "imes testi7ed:
Ie did t#at be!ause ,e didnPt ,ant an1t#ing t#at ,as publis#ed b1 "#e "imes to be a
reNe!tion on t#e State o+ Alabama, and t#e %overnor ,as, as +ar as ,e !ould see, t#e
embodiment o+ t#e State o+ Alabama and t#e proper representative o+ t#e State, and,
+urt#ermore, ,e #ad b1 t#at time learned more o+ t#e a!tual +a!ts ,#i!# t#e and
purported to re!ite and, 7nall1, t#e ad did re+er to t#e a!tion o+ t#e State aut#orities and
t#e Eoard o+ Bdu!ation, presumabl1 o+ ,#i!# t#e %overnor is t#e e*-oC!io
!#airman. . . .
Dn t#e ot#er #and, #e testi7ed t#at #e did not t#in0 t#at Qan1 o+ t#e language in t#ere
re+erred to Mr. Sullivan.Q
"#e trial udge submitted t#e !ase to t#e ur1 under instru!tions t#at t#e statements in
t#e advertisement ,ere Qlibelous per se,Q and ,ere not privileged, so t#at petitioners
mig#t be #eld liable i+ t#e ur1 +ound t#at t#e1 #ad publis#ed t#e advertisement and
t#at t#e statements ,ere made Qo+ and !on!erningQ respondent. "#e ur1 ,as instru!ted
t#at, be!ause t#e statements ,ere libelous per se, Qt#e la, . . . implies legal inur1 +rom
t#e bare +a!t o+ publi!ation itsel+,Q Q+alsit1 and mali!e are presumed,Q Qgeneral damages
need not be alleged or proved, but are presumed,Q and Qpunitive damages ma1 be
a,arded b1 t#e ur1 even t#oug# t#e amount o+ a!tual damages is neit#er +ound nor
s#o,n.Q An a,ard o+ punitive damages -- as distinguis#ed +rom QgeneralQ damages,
,#i!# are !ompensator1 in nature -- apparentl1 reHuires proo+ o+ a!tual mali!e under
Alabama la,, and t#e udge !#arged t#at
mere negligen!e or !arelessness is not eviden!e o+ a!tual mali!e or mali!e in +a!t, and
does not usti+1 an a,ard o+ e*emplar1 or punitive damages.
8e re+used to !#arge, #o,ever, t#at t#e ur1 must be Q!onvin!edQ o+ mali!e, in t#e
sense o+ Qa!tual intentQ to #arm or Qgross negligen!e and re!0lessness,Q to ma0e su!#
an a,ard, and #e also re+used to reHuire t#at a verdi!t +or respondent diAerentiate
bet,een !ompensator1 and punitive damages. "#e udge ree!ted petitionersP
!ontention @+875At#at #is rulings abridged t#e +reedoms o+ spee!# and o+ t#e press
t#at are guaranteed b1 t#e =irst and =ourteent# Amendments.
?n aCrming t#e udgment, t#e Supreme Court o+ Alabama sustained t#e trial udgePs
rulings and instru!tions in all respe!ts. '23 Ala. F(F, .55 So.'d '(. ?t #eld t#at,
,#ere t#e ,ords publis#ed tend to inure a person libeled b1 t#em in #is reputation,
pro+ession, trade or business, or !#arge #im ,it# an indi!table oAense, or tend to bring
t#e individual into publi! !ontempt,
t#e1 are Qlibelous per seQG t#at Qt#e matter !omplained o+ is, under t#e above do!trine,
libelous per se, i+ it ,as publis#ed o+ and !on!erning t#e plaintiAQ, and t#at it ,as
a!tionable ,it#out Qproo+ o+ pe!uniar1 inur1 . . . . su!# inur1 being implied.Q Id. at F23,
F2F, .55 So.'d at 32, 5.. ?t approved t#e trial !ourtPs ruling t#at t#e ur1 !ould 7nd t#e
statements to #ave been made Qo+ and !on!erningQ respondent, stating:
Ie t#in0 it !ommon 0no,ledge t#at t#e average person 0no,s t#at muni!ipal agents,
su!# as poli!e and 7remen, and ot#ers, are under t#e !ontrol and dire!tion o+ t#e !it1
governing bod1, and, more parti!ularl1, under t#e dire!tion and !ontrol o+ a single
!ommissioner. ?n measuring t#e per+orman!e or de7!ien!ies o+ su!# groups, praise or
!riti!ism is usuall1 atta!#ed to t#e oC!ial in !omplete !ontrol o+ t#e bod1.
Id. at F25-F2(, .55 So.'d at 3J. ?n sustaining t#e trial !ourtPs determination t#at t#e
verdi!t ,as not e*!essive, t#e !ourt said t#at mali!e !ould be in+erred +rom t#e "imesP
Qirresponsibilit1Q in printing t#e advertisement ,#ile
t#e "imes, in its o,n 7les, #ad arti!les alread1 publis#ed ,#i!# ,ould #ave
demonstrated t#e +alsit1 o+ t#e allegations in t#e advertisementG
+rom t#e "imesP +ailure to retra!t +or respondent ,#ile retra!ting +or t#e %overnor,
,#ereas t#e +alsit1 o+ some o+ t#e allegations ,as t#en 0no,n to t#e "imes and Qt#e
matter !ontained in t#e advertisement ,as eHuall1 +alse as to bot# partiesQ, and +rom
t#e testimon1 o+ t#e "imesP Se!retar1 t#at, @+87:A apart +rom t#e statement t#at t#e
dining #all ,as padlo!0ed, #e t#oug#t t#e t,o paragrap#s ,ere Qsubstantiall1
!orre!t.Q Id. at F4F-F42, .55 So.'d at ()-(.. "#e !ourt reaCrmed a statement in an
earlier opinion t#at Q"#ere is no legal measure o+ damages in !ases o+ t#is
!#ara!ter.Q Id. at F4F, .55 So.'d at (). ?t ree!ted petitionersP !onstitutional !ontentions
,it# t#e brie+ statements t#at Q"#e =irst Amendment o+ t#e L.S. Constitution does not
prote!t libelous publi!ations,Q and Q"#e =ourteent# Amendment is dire!ted against State
a!tion, and not private a!tion.Q Id. at F2F, .55 So.'d at 5).
Ee!ause o+ t#e importan!e o+ t#e !onstitutional issues involved, ,e granted t#e
separate petitions +or !ertiorari o+ t#e individual petitioners and o+ t#e "imes. 32. L.S.
J5F. Ie reverse t#e udgment. Ie #old t#at t#e rule o+ la, applied b1 t#e Alabama
!ourts is !onstitutionall1 de7!ient +or +ailure to provide t#e sa+eguards +or +reedom o+
spee!# and o+ t#e press t#at are reHuired b1 t#e =irst and =ourteent# Amendments in a
libel a!tion broug#t b1 a publi! oC!ial against !riti!s o+ #is oC!ial
!ondu!t.
@n:A
Ie @+879A +urt#er #old t#at, under t#e proper sa+eguards, t#e eviden!e
presented in t#is !ase is !onstitutionall1 insuC!ient to support t#e udgment +or
respondent.
?.
Ie ma1 dispose at t#e outset o+ t,o grounds asserted to insulate t#e udgment o+ t#e
Alabama !ourts +rom !onstitutional s!rutin1. "#e 7rst is t#e proposition relied on b1 t#e
State Supreme Court -- t#at Q"#e =ourteent# Amendment is dire!ted against State
a!tion, and not private a!tion.Q "#at proposition #as no appli!ation to t#is !ase.
Alt#oug# t#is is a !ivil la,suit bet,een private parties, t#e Alabama !ourts #ave applied
a state rule o+ la, ,#i!# petitioners !laim to impose invalid restri!tions on t#eir
!onstitutional +reedoms o+ spee!# and press. ?t matters not t#at t#at la, #as been
applied in a !ivil a!tion and t#at it is !ommon la, onl1, t#oug# supplemented b1
statute. See, e.g., Alabama Code, "it. 2, OO J)4-J.2. "#e test is not t#e +orm in ,#i!#
state po,er #as been applied but, ,#atever t#e +orm, ,#et#er su!# po,er #as, in +a!t,
been e*er!ised. See E parte !irginia, .)) L.S. 33J, 35F-352G A"erican #ederation of
$abor %. S&ing. 3.' L.S. 3'..
"#e se!ond !ontention is t#at t#e !onstitutional guarantees o+ +reedom o+ spee!# and o+
t#e press are inappli!able #ere, at least so +ar as t#e "imes is !on!erned, be!ause t#e
allegedl1 libelous statements ,ere publis#ed as part o+ a paid, Q!ommer!ialQ
advertisement. "#e argument relies on !alentine %. Chrestensen, 3.F L.S. (', ,#ere t#e
Court #eld t#at a !it1 ordinan!e +orbidding street distribution o+ !ommer!ial and
business advertising matter did not abridge t#e =irst Amendment +reedoms, even as
applied to a #andbill #aving a !ommer!ial message on one side but a protest against
!ertain oC!ial a!tion, on t#e ot#er. "#e relian!e is ,#oll1 mispla!ed. "#e Court
in ChrestensenreaCrmed t#e !onstitutional prote!tion +or Qt#e +reedom o+
!ommuni!ating @+877Ain+ormation and disseminating opinionQG its #olding ,as based
upon t#e +a!tual !on!lusions t#at t#e #andbill ,as Qpurel1 !ommer!ial advertisingQ and
t#at t#e protest against oC!ial a!tion #ad been added onl1 to evade t#e ordinan!e.
"#e publi!ation #ere ,as not a Q!ommer!ialQ advertisement in t#e sense in ,#i!# t#e
,ord ,as used in Chrestensen. ?t !ommuni!ated in+ormation, e*pressed opinion, re!ited
grievan!es, protested !laimed abuses, and soug#t 7nan!ial support on be#al+ o+ a
movement ,#ose e*isten!e and obe!tives are matters o+ t#e #ig#est publi! interest
and !on!ern. See 'AACP %. (utton, 32. L.S. 5.(, 53(. "#at t#e "imes ,as paid +or
publis#ing t#e advertisement is as immaterial in t#is !onne!tion as is t#e +a!t t#at
ne,spapers and boo0s are sold. S"ith %. California, 3F. L.S. .52, .()G cf. (anta"
(oo)s, Inc., %. Sulli%an,32' L.S. (4, F5, n. F. An1 ot#er !on!lusion ,ould dis!ourage
ne,spapers +rom !arr1ing Qeditorial advertisementsQ o+ t#is t1pe, and so mig#t s#ut oA
an important outlet +or t#e promulgation o+ in+ormation and ideas b1 persons ,#o do
not t#emselves #ave a!!ess to publis#ing +a!ilities -- ,#o ,is# to e*er!ise t#eir +reedom
o+ spee!# even t#oug# t#e1 are not members o+ t#e press. Cf. $o%ell %. *ri+n, 3)3 L.S.
555, 5('G Schneider %. State, 3)4 L.S. .52, .F5. "#e eAe!t ,ould be to s#a!0le t#e =irst
Amendment in its attempt to se!ure Qt#e ,idest possible dissemination o+ in+ormation
+rom diverse and antagonisti! sour!es.QAssociated Press %. ,nited States, 3'F L.S. .,
'). "o avoid pla!ing su!# a #andi!ap upon t#e +reedoms o+ e*pression, ,e #old t#at, i+
t#e allegedl1 libelous statements ,ould ot#er,ise be !onstitutionall1 prote!ted +rom t#e
present udgment, t#e1 do not +or+eit t#at prote!tion be!ause t#e1 ,ere publis#ed in
t#e +orm o+ a paid advertisement.
@n9A
@+876A
??
Lnder Alabama la,, as applied in t#is !ase, a publi!ation is Qlibelous per seQ i+ t#e ,ords
Qtend to inure a person . . . in #is reputationQ or to Qbring -#im/ into publi! !ontemptQG
t#e trial !ourt stated t#at t#e standard ,as met i+ t#e ,ords are su!# as to Qinure #im
in #is publi! oC!e, or impute mis!ondu!t to #im in #is oC!e, or ,ant o+ oC!ial integrit1,
or ,ant o+ 7delit1 to a publi! trust. . . .Q "#e ur1 must 7nd t#at t#e ,ords ,ere
publis#ed Qo+ and !on!erningQ t#e plaintiA, but, ,#ere t#e plaintiA is a publi! oC!ial, #is
pla!e in t#e governmental #ierar!#1 is suC!ient eviden!e to support a 7nding t#at #is
reputation #as been aAe!ted b1 statements t#at reNe!t upon t#e agen!1 o+ ,#i!# #e is
in !#arge. Dn!e Qlibel per seQ #as been establis#ed, t#e de+endant #as no de+ense as to
stated +a!ts unless #e !an persuade t#e ur1 t#at t#e1 ,ere true in all t#eir
parti!ulars. Alaba"a -ide Co. %. !ance, '3( Ala. 'F3, .24 So. 534 9.J34<G Johnson
Publishing Co. %. .a%is, '2. Ala. 525, 5J5 5J(, .'5 So.'d 55., 5(2-5(4 9.JF)<. 8is
privilege o+ Q+air !ommentQ +or e*pressions o+ opinion depends on t#e trut# o+ t#e +a!ts
upon ,#i!# t#e !omment is based. Parsons %. Age/Herald Publishing Co., .4. Ala. 53J,
5(), F. So. 35(, 3() 9.J.3<. Lnless #e !an dis!#arge t#e burden o+ proving trut#,
general damages are presumed, and ma1 be a,arded ,it#out proo+ o+ pe!uniar1 inur1.
A s#o,ing o+ a!tual mali!e is apparentl1 a prereHuisite to re!over1 o+ punitive damages,
and t#e de+endant ma1, in an1 event, +orestall a punitive a,ard b1 a retra!tion meeting
t#e statutor1 reHuirements. %ood motives and belie+ in trut# do not negate an in+eren!e
o+ mali!e, but are relevant onl1 in mitigation o+ punitive damages i+ t#e ur1 !#ooses to
a!!ord t#em ,eig#t. Johnson Publishing Co. %. .a%is, supra, '2. Ala., at 5J(, .'5 So.'d
at 5(4. @+87BA
"#e Huestion be+ore us is ,#et#er t#is rule o+ liabilit1, as applied to an a!tion broug#t b1
a publi! oC!ial against !riti!s o+ #is oC!ial !ondu!t, abridges t#e +reedom o+ spee!#
and o+ t#e press t#at is guaranteed b1 t#e =irst and =ourteent# Amendments.
&espondent relies #eavil1, as did t#e Alabama !ourts, on statements o+ t#is Court to t#e
eAe!t t#at t#e Constitution does not prote!t libelous publi!ations.
@n7A
"#ose statements
do not +ore!lose our inHuir1 #ere. $one o+ t#e !ases sustained t#e use o+ libel la,s to
impose san!tions upon e*pression !riti!al o+ t#e oC!ial !ondu!t o+ publi! oC!ials. "#e
di!tum in Penne)a"p %. #lorida, 3'4 L.S. 33., 354-35J, t#at Q,#en t#e statements
amount to de+amation, a udge #as su!# remed1 in damages +or libel as do ot#er publi!
servants,Q implied no vie, as to ,#at remed1 mig#t !onstitutionall1 be aAorded to
publi! oC!ials. ?n (eauharnais %. Illinois, 353 L.S. '(), t#e Court sustained an ?llinois
!riminal libel statute as applied to a publi!ation #eld to be bot# de+amator1 o+ a ra!ial
group and Qliable to !ause violen!e and disorder.Q Eut t#e Court ,as !are+ul to note t#at
it Qretains and e*er!ises aut#orit1 to nulli+1 a!tion ,#i!# en!roa!#es on +reedom o+
utteran!e under t#e guise o+ punis#ing libelQG +or Qpubli! men are, as it ,ere, publi!
propert1,Q and Qdis!ussion !annot be denied, and t#e rig#t, as ,ell as t#e dut1, o+
!riti!ism must not be stiNed.Q Id. at 'F3-'F5, and n. .4. ?n t#e onl1 previous !ase t#at
did present t#e Huestion o+ !onstitutional limitations upon t#e po,er to a,ard damages
+or libel o+ a publi! oC!ial, t#e Court ,as eHuall1 divided and t#e Huestion ,as not
de!ided. Schenectady ,nion Pub. Co. %. S&eeney, 3.F L.S. F5'. @+87=A ?n de!iding t#e
Huestion no,, ,e are !ompelled b1 neit#er pre!edent nor poli!1 to give an1 more
,eig#t to t#e epit#et QlibelQ t#an ,e #ave to ot#er Qmere labelsQ o+ state la,. 'AACP %.
(utton, 32. L.S. 5.(, 5'J. >i0e insurre!tion,
@n6A
!ontempt,
@nBA
advo!a!1 o+ unla,+ul
a!ts,
@n=A
brea!# o+ t#e pea!e,
@n?CA
obs!enit1,
@n??A
soli!itation o+ legal business,
@n?8A
and t#e
various ot#er +ormulae +or t#e repression o+ e*pression t#at #ave been !#allenged in
t#is Court, libel !an !laim no talismani! immunit1 +rom !onstitutional limitations. ?t must
be measured b1 standards t#at satis+1 t#e =irst Amendment.
"#e general proposition t#at +reedom o+ e*pression upon publi! Huestions is se!ured b1
t#e =irst Amendment #as long been settled b1 our de!isions. "#e !onstitutional
sa+eguard, ,e #ave said, Q,as +as#ioned to assure un+ettered inter!#ange o+ ideas +or
t#e bringing about o+ politi!al and so!ial !#anges desired b1 t#e people.Q -oth %. ,nited
States, 3(5 L.S. 52F, 545.
"#e maintenan!e o+ t#e opportunit1 +or +ree politi!al dis!ussion to t#e end t#at
government ma1 be responsive to t#e ,ill o+ t#e people and t#at !#anges ma1 be
obtained b1 la,+ul means, an opportunit1 essential to t#e se!urit1 o+ t#e &epubli!, is a
+undamental prin!iple o+ our !onstitutional s1stem.
Stro"berg %. California, '43 L.S. 3(J, 3FJ. Q-?/t is a prized Ameri!an privilege to spea0
onePs mind, alt#oug# not al,a1s ,it# per+e!t good taste, on all publi!
institutions,Q (ridges %. California, 3.5 L.S. '(', '2), and t#is opportunit1 is to be
aAorded +or Qvigorous advo!a!1Q no less t#an Qabstra!t dis!ussion.Q 'AACP %.
(utton, 32. L.S. 5.(, 5'J. @+86CA"#e =irst Amendment, said Judge >earned 8and,
presupposes t#at rig#t !on!lusions are more li0el1 to be gat#ered out o+ a multitude o+
tongues t#an t#roug# an1 0ind o+ aut#oritative sele!tion. "o man1, t#is is, and al,a1s
,ill be, +oll1, but ,e #ave sta0ed upon it our all.
,nited States %. Associated Press, (' =.Supp. 3F', 32' 9D.C.S.D.$.Y..J53<. Mr. Justi!e
Erandeis, in #is !on!urring opinion in 0hitney %. California, '25 L.S. 3(2, 32(-32F, gave
t#e prin!iple its !lassi! +ormulation:
"#ose ,#o ,on our independen!e believed . . . t#at publi! dis!ussion is a politi!al dut1,
and t#at t#is s#ould be a +undamental prin!iple o+ t#e Ameri!an government. "#e1
re!ognized t#e ris0s to ,#i!# all #uman institutions are sube!t. Eut t#e1 0ne, t#at
order !annot be se!ured merel1 t#roug# +ear o+ punis#ment +or its in+ra!tionG t#at it is
#azardous to dis!ourage t#oug#t, #ope and imaginationG t#at +ear breeds repressionG
t#at repression breeds #ateG t#at #ate mena!es stable governmentG t#at t#e pat# o+
sa+et1 lies in t#e opportunit1 to dis!uss +reel1 supposed grievan!es and proposed
remedies, and t#at t#e 7tting remed1 +or evil !ounsels is good ones. Eelieving in t#e
po,er o+ reason as applied t#roug# publi! dis!ussion, t#e1 es!#e,ed silen!e !oer!ed b1
la, -- t#e argument o+ +or!e in its ,orst +orm. &e!ognizing t#e o!!asional t1rannies o+
governing maorities, t#e1 amended t#e Constitution so t#at +ree spee!# and assembl1
s#ould be guaranteed.
"#us, ,e !onsider t#is !ase against t#e ba!0ground o+ a pro+ound national !ommitment
to t#e prin!iple t#at debate on publi! issues s#ould be unin#ibited, robust, and ,ide-
open, and t#at it ma1 ,ell in!lude ve#ement, !austi!, and sometimes unpleasantl1
s#arp atta!0s on government and publi! oC!ials. See 1er"iniello %. Chicago, 332 L.S. .,
5G .e Jonge %. 2regon, 'JJ L.S. 3(3, @+86?A 3F(. "#e present advertisement, as an
e*pression o+ grievan!e and protest on one o+ t#e maor publi! issues o+ our time, ,ould
seem !learl1 to Huali+1 +or t#e !onstitutional prote!tion. "#e Huestion is ,#et#er it
+or+eits t#at prote!tion b1 t#e +alsit1 o+ some o+ its +a!tual statements and b1 its alleged
de+amation o+ respondent.
Aut#oritative interpretations o+ t#e =irst Amendment guarantees #ave !onsistentl1
re+used to re!ognize an e*!eption +or an1 test o+ trut# -- ,#et#er administered b1
udges, uries, or administrative oC!ials -- and espe!iall1 one t#at puts t#e burden o+
proving trut# on t#e spea0er. Cf. Speiser %. -andall, 3(2 L.S. (.3, ('(-('F. "#e
!onstitutional prote!tion does not turn upon Qt#e trut#, popularit1, or so!ial utilit1 o+ t#e
ideas and belie+s ,#i!# are oAered.Q 'AACP %. (utton, 32. L.S. 5.(, 55(. As Madison
said, QSome degree o+ abuse is inseparable +rom t#e proper use o+ ever1 t#ing, and in
no instan!e is t#is more true t#an in t#at o+ t#e press.Q 5 BlliotPs Debates on t#e =ederal
Constitution 9.42F<, p. (2.. ?nCant&ell %. Connecticut, 3.) L.S. 'JF, 3.), t#e Court
de!lared:
?n t#e realm o+ religious +ait#, and in t#at o+ politi!al belie+, s#arp diAeren!es arise. ?n
bot# 7elds, t#e tenets o+ one man ma1 seem t#e ran0est error to #is neig#bor. "o
persuade ot#ers to #is o,n point o+ vie,, t#e pleader, as ,e 0no,, at times resorts to
e*aggeration, to vili7!ation o+ men ,#o #ave been, or are, prominent in !#ur!# or state,
and even to +alse statement. Eut t#e people o+ t#is nation #ave ordained, in t#e lig#t o+
#istor1, t#at, in spite o+ t#e probabilit1 o+ e*!esses and abuses, t#ese liberties are, in
t#e long vie,, essential to enlig#tened opinion and rig#t !ondu!t on t#e part o+ t#e
!itizens o+ a demo!ra!1.
"#at erroneous statement is inevitable in +ree debate, and t#at it must be prote!ted i+
t#e +reedoms o+ e*pression @+868A are to #ave t#e Qbreat#ing spa!eQ t#at t#e1 Qneed . .
. to survive,Q 'AACP %. (utton, 32. L.S. 5.(, 533, ,as also re!ognized b1 t#e Court o+
Appeals +or t#e Distri!t o+ Columbia Cir!uit in S&eeney %. Patterson, 2F L.S.App.D.C. '3,
'5, .'4 =.'d 5(2, 5(4 9.J5'<, cert. denied, 3.2 L.S. F24. Judge Bdgerton spo0e +or a
unanimous !ourt ,#i!# aCrmed t#e dismissal o+ a CongressmanPs libel suit based upon
a ne,spaper arti!le !#arging #im ,it# anti-Semitism in opposing a udi!ial appointment.
8e said:
Cases ,#i!# impose liabilit1 +or erroneous reports o+ t#e politi!al !ondu!t o+ oC!ials
reNe!t t#e obsolete do!trine t#at t#e governed must not !riti!ize t#eir governors. . . .
"#e interest o+ t#e publi! #ere out,eig#s t#e interest o+ appellant or an1 ot#er
individual. "#e prote!tion o+ t#e publi! reHuires not merel1 dis!ussion, but in+ormation.
Politi!al !ondu!t and vie,s ,#i!# some respe!table people approve, and ot#ers
!ondemn, are !onstantl1 imputed to Congressmen. Brrors o+ +a!t, parti!ularl1 in regard
to a manPs mental states and pro!esses, are inevitable. . . . I#atever is added to t#e
7eld o+ libel is ta0en +rom t#e 7eld o+ +ree debate.
@n?5A
?nur1 to oC!ial reputation aAords no more ,arrant +or repressing spee!# t#at ,ould
ot#er,ise be +ree t#an does +a!tual error. I#ere udi!ial oC!ers are involved, t#is Court
#as #eld t#at !on!ern +or t#e dignit1 and @+865A reputation o+ t#e !ourts does not
usti+1 t#e punis#ment as !riminal !ontempt o+ !riti!ism o+ t#e udge or #is
de!ision. (ridges %. California, 3.5 L.S. '('. "#is is true even t#oug# t#e utteran!e
!ontains Q#al+-trut#sQ and Qmisin+ormation.Q Penne)a"p %. #lorida, 3'4 L.S. 33., 35',
353, n. (, 35(. Su!# repression !an be usti7ed, i+ at all, onl1 b1 a !lear and present
danger o+ t#e obstru!tion o+ usti!e. See also Craig %. Harney, 33. L.S. 3F2G 0ood %.
*eorgia, 32) L.S. 32(. ?+ udges are to be treated as Qmen o+ +ortitude, able to t#rive in
a #ard1 !limate,Q Craig %. Harney, supra, 33. L.S. at 32F, surel1 t#e same must be true
o+ ot#er government oC!ials, su!# as ele!ted !it1 !ommissioners.
@n?:A
Criti!ism o+ t#eir
oC!ial !ondu!t does not lose its !onstitutional prote!tion merel1 be!ause it is eAe!tive
!riti!ism, and #en!e diminis#es t#eir oC!ial reputations.
?+ neit#er +a!tual error nor de+amator1 !ontent suC!es to remove t#e !onstitutional
s#ield +rom !riti!ism o+ oC!ial !ondu!t, t#e !ombination o+ t#e t,o elements is no less
inadeHuate. "#is is t#e lesson to be dra,n +rom t#e great !ontrovers1 over t#e Sedition
A!t o+ .2J4, . Stat. (JF, ,#i!# 7rst !r1stallized a national a,areness o+ t#e !entral
meaning o+ t#e =irst Amendment. See >ev1, >ega!1 o+ Suppression 9.JF)<, at '(4 et
se3.4Smit#, =reedomPs =etters 9.J(F<, at 5'F, 53., and passi". "#at statute made it a
!rime, punis#able b1 a R(,))) 7ne and 7ve 1ears in prison,
i+ an1 person s#all ,rite, print, utter or publis# . . . an1 +alse, s!andalous and
mali!ious@+86:A ,riting or ,ritings against t#e government o+ t#e Lnited States, or
eit#er #ouse o+ t#e Congress . . . or t#e President . . . ,it# intent to de+ame . . . or to
bring t#em, or eit#er o+ t#em, into !ontempt or disreputeG or to e*!ite against t#em, or
eit#er or an1 o+ t#em, t#e #atred o+ t#e good people o+ t#e Lnited States.
"#e A!t allo,ed t#e de+endant t#e de+ense o+ trut#, and provided t#at t#e ur1 ,ere to
be udges bot# o+ t#e la, and t#e +a!ts. Despite t#ese Huali7!ations, t#e A!t ,as
vigorousl1 !ondemned as un!onstitutional in an atta!0 oined in b1 JeAerson and
Madison. ?n t#e +amous @irginia &esolutions o+ .2J4, t#e %eneral Assembl1 o+ @irginia
resolved t#at it
dot# parti!ularl1 protest against t#e palpable and alarming in+ra!tions o+ t#e
Constitution in t#e t,o late !ases o+ t#e QAlien and Sedition A!ts,Q passed at t#e last
session o+ Congress. . . . -"#e Sedition A!t/ e*er!ises . . . a po,er not delegated b1 t#e
Constitution, but, on t#e !ontrar1, e*pressl1 and positivel1 +orbidden b1 one o+ t#e
amendments t#ereto -- a po,er ,#i!#, more t#an an1 ot#er, oug#t to produ!e universal
alarm be!ause it is leveled against t#e rig#t o+ +reel1 e*amining publi! !#ara!ters and
measures, and o+ +ree !ommuni!ation among t#e people t#ereon, ,#i!# #as ever been
ustl1 deemed t#e onl1 eAe!tual guardian o+ ever1 ot#er rig#t.
5 BlliotPs Debates, supra, pp. ((3-((5. Madison prepared t#e &eport in support o+ t#e
protest. 8is premise ,as t#at t#e Constitution !reated a +orm o+ government under
,#i!# Q"#e people, not t#e government, possess t#e absolute sovereignt1.Q "#e
stru!ture o+ t#e government dispersed po,er in reNe!tion o+ t#e peoplePs distrust o+
!on!entrated po,er, and o+ po,er itsel+ at all levels. "#is +orm o+ government ,as
Qaltoget#er diAerentQ +rom t#e Eritis# +orm, under ,#i!# t#e Cro,n ,as sovereign and
t#e people ,ere sube!ts. Q?s@+869A it not natural and ne!essar1, under su!# diAerent
!ir!umstan!es,Q #e as0ed, Qt#at a diAerent degree o+ +reedom in t#e use o+ t#e press
s#ould be !ontemplatedTQ Id., pp. (FJ-(2). Barlier, in a debate in t#e 8ouse o+
&epresentatives, Madison #ad said:
?+ ,e advert to t#e nature o+ &epubli!an %overnment, ,e s#all 7nd t#at t#e !ensorial
po,er is in t#e people over t#e %overnment, and not in t#e %overnment over t#e
people.
5 Annals o+ Congress, p. J35 9.2J5<. D+ t#e e*er!ise o+ t#at po,er b1 t#e press, #is
&eport said:
?n ever1 state, probabl1, in t#e Lnion, t#e press #as e*erted a +reedom in !anvassing
t#e merits and measures o+ publi! men, o+ ever1 des!ription, ,#i!# #as not been
!on7ned to t#e stri!t limits o+ t#e !ommon la,. Dn t#is +ooting, t#e +reedom o+ t#e press
#as stoodG on t#is +oundation it 1et stands. . . .
5 BlliotPs Debates, supra, p. (2). "#e rig#t o+ +ree publi! dis!ussion o+ t#e ste,ards#ip o+
publi! oC!ials ,as t#us, in MadisonPs vie,, a +undamental prin!iple o+ t#e Ameri!an
+orm o+ government.
@n?9A
@+867A
Alt#oug# t#e Sedition A!t ,as never tested in t#is Court,
@n?7A
t#e atta!0 upon its validit1
#as !arried t#e da1 in t#e !ourt o+ #istor1. =ines levied in its prose!ution ,ere repaid b1
A!t o+ Congress on t#e ground t#at it ,as un!onstitutional. See, e.g., A!t o+ Jul1 5, .45),
!. 5(, F Stat. 4)', a!!ompanied b1 8.&.&ep. $o. 4F, 'Ft# Cong., .st Sess. 9.45)<.
Cal#oun, reporting to t#e Senate on =ebruar1 5, .43F, assumed t#at its invalidit1 ,as a
matter Q,#i!# no one no, doubts.Q &eport ,it# Senate bill $o. .'', '5t# Cong., .st
Sess., p. 3. JeAerson, as President, pardoned t#ose ,#o #ad been !onvi!ted and
senten!ed under t#e A!t and remitted t#eir 7nes, stating:
? dis!#arged ever1 person under punis#ment or prose!ution under t#e sedition la,
be!ause ? !onsidered, and no, !onsider, t#at la, to be a nullit1, as absolute and as
palpable as i+ Congress #ad ordered us to +all do,n and ,ors#ip a golden image.
>etter to Mrs. Adams, Jul1 '', .4)5, 5 JeAersonPs Ior0s 9Ias#ington ed.<, pp. (((, ((F.
"#e invalidit1 o+ t#e A!t #as also been assumed b1 Justi!es o+ t#is Court. See 8olmes, J.,
dissenting and oined b1 Erandeis, J., in Abra"s %. ,nited States, '() L.S. F.F, F3)G
Ja!0son, J., dissenting in (eauharnais %. Illinois, 353 L.S. '(), '44-'4JG Douglas, "#e
&ig#t o+ t#e People 9.J(4<, p. 52. See also Coole1, Constitutional >imitations 94t# ed.,
Carrington, .J'2<, pp. 4JJ-J))G C#a+ee, =ree Spee!# in t#e Lnited States 9.J5'<, pp.
'2-'4. "#ese vie,s reNe!t a broad !onsensus t#at t#e A!t, be!ause o+ t#e restraint it
imposed upon !riti!ism o+ government and publi! oC!ials, ,as in!onsistent ,it# t#e
=irst Amendment.
"#ere is no +or!e in respondentPs argument t#at t#e !onstitutional limitations impli!it in
t#e #istor1 o+ t#e Sedition A!t appl1 onl1 to Congress, and not to t#e States. ?t is true
t#at t#e =irst Amendment ,as originall1 addressed onl1 to a!tion b1 t#e =ederal
%overnment, and @+866A t#at JeAerson, +or one, ,#ile den1ing t#e po,er o+ Congress
Qto !ontroul t#e +reedom o+ t#e press,Q re!ognized su!# a po,er in t#e States. See t#e
.4)5 >etter to Abigail Adams Huoted in .ennis %. ,nited States, 35. L.S. 5J5, ('', n. 5
9!on!urring opinion<. Eut t#is distin!tion ,as eliminated ,it# t#e adoption o+ t#e
=ourteent# Amendment and t#e appli!ation to t#e States o+ t#e =irst AmendmentPs
restri!tions. See, e.g., *itlo& %. 'e& 5or), 'F4 L.S. F(', FFFG Schneider %. State, 3)4
L.S. .52, .F)G (ridges %. California, 3.5 L.S. '(', 'F4G Ed&ards %. South Carolina, 32'
L.S. ''J, '3(.
I#at a State ma1 not !onstitutionall1 bring about b1 means o+ a !riminal statute is
li0e,ise be1ond t#e rea!# o+ its !ivil la, o+ libel.
@n?6A
"#e +ear o+ damage a,ards under a
rule su!# as t#at invo0ed b1 t#e Alabama !ourts #ere ma1 be mar0edl1 more in#ibiting
t#an t#e +ear o+ prose!ution under a !riminal statute. See City of Chicago %. 1ribune
Co., 3)2 ?ll. (J(, F)2, .3J $.B. 4F, J) 9.J'3<. Alabama, +or e*ample, #as a !riminal libel
la, ,#i!# sube!ts to prose!ution Qan1 person ,#o spea0s, ,rites, or prints o+ and
!on!erning anot#er an1 a!!usation +alsel1 and mali!iousl1 importing t#e !ommission b1
su!# person o+ a +elon1, or an1 ot#er indi!table oAense involving moral turpitude,Q and
,#i!# allo,s as punis#ment upon !onvi!tion a 7ne not e*!eeding R()) and a prison
senten!e o+ si* mont#s. Alabama Code, "it. .5, O 3(). Presumabl1, a person !#arged
,it# violation o+ t#is statute eno1s ordinar1 !riminal la, sa+eguards su!# as t#e
reHuirements o+ an indi!tment and o+ proo+ be1ond a reasonable doubt. "#ese
sa+eguards are not available to t#e de+endant in a !ivil a!tion. "#e udgment a,arded in
t#is !ase -- ,it#out t#e need +or an1 proo+ o+ a!tual pe!uniar1 loss -- ,as one t#ousand
times greater t#an t#e ma*imum 7ne provided b1 t#e Alabama !riminal statute, and
one #undred times greater t#an t#at provided b1 t#e Sedition A!t. @+86BA And sin!e
t#ere is no double eopard1 limitation appli!able to !ivil la,suits, t#is is not t#e onl1
udgment t#at ma1 be a,arded against petitioners +or t#e same
publi!ation.
@n?BA
I#et#er or not a ne,spaper !an survive a su!!ession o+ su!#
udgments, t#e pall o+ +ear and timidit1 imposed upon t#ose ,#o ,ould give voi!e to
publi! !riti!ism is an atmosp#ere in ,#i!# t#e =irst Amendment +reedoms !annot
survive. Plainl1 t#e Alabama la, o+ !ivil libel is
a +orm o+ regulation t#at !reates #azards to prote!ted +reedoms mar0edl1 greater t#an
t#ose t#at attend relian!e upon t#e !riminal la,.
(anta" (oo)s, Inc. %. Sulli%an, 32' L.S. (4, 2).
"#e state rule o+ la, is not saved b1 its allo,an!e o+ t#e de+ense o+ trut#. A de+ense +or
erroneous statements #onestl1 made is no less essential #ere t#an ,as t#e reHuirement
o+ proo+ o+ guilt1 0no,ledge ,#i!#, in S"ith %. California, 3F. L.S. .52, ,e #eld
indispensable to a valid !onvi!tion o+ a boo0seller +or possessing obs!ene ,ritings +or
sale. Ie said:
=or, i+ t#e boo0seller is !riminall1 liable ,it#out 0no,ledge o+ t#e !ontents, . . . 8e ,ill
tend to restri!t t#e boo0s #e sells to t#ose #e #as inspe!ted, and t#us t#e State ,ill
#ave imposed a restri!tion upon t#e distribution o+ !onstitutionall1 prote!ted, as ,ell as
obs!ene, literature. . . . And t#e boo0sellerPs burden ,ould be!ome t#e publi!Ps burden,
+or, b1 restri!ting #im, t#e publi!Ps a!!ess to reading matter ,ould be restri!ted. . . .
-8/is timidit1 in t#e +a!e o+ #is absolute !riminal liabilit1 t#us ,ould tend to restri!t t#e
publi!Ps a!!ess to +orms o+ t#e printed ,ord ,#i!# t#e State !ould not
!onstitutionall1 @+86=Asuppress dire!tl1. "#e boo0sellerPs sel+-!ensors#ip, !ompelled b1
t#e State, ,ould be a !ensors#ip aAe!ting t#e ,#ole publi!, #ardl1 less virulent +or
being privatel1 administered. "#roug# it, t#e distribution o+ all boo0s, bot# obs!ene and
not obs!ene, ,ould be impeded.
9 3F. L.S. .52, .(3-.(5.< A rule !ompelling t#e !riti! o+ oC!ial !ondu!t to guarantee t#e
trut# o+ all #is +a!tual assertions -- and to do so on pain o+ libel udgments virtuall1
unlimited in amount -- leads to a !omparable Qsel+-!ensors#ip.Q Allo,an!e o+ t#e
de+ense o+ trut#, ,it# t#e burden o+ proving it on t#e de+endant, does not mean t#at
onl1 +alse spee!# ,ill be deterred.
@n?=A
Bven !ourts a!!epting t#is de+ense as an
adeHuate sa+eguard #ave re!ognized t#e diC!ulties o+ addu!ing legal proo+s t#at t#e
alleged libel ,as true in all its +a!tual parti!ulars. See, e.g., Post Publishing Co. %.
Halla", (J =. (3), (5) 9C.A. Ft# Cir. .4J3<G see also $oel, De+amation o+ Publi! DC!ers
and Candidates, 5J Col.>.&ev. 42(, 4J' 9.J5J<. Lnder su!# a rule, ,ould-be !riti!s o+
oC!ial !ondu!t ma1 be deterred +rom voi!ing t#eir !riti!ism, even t#oug# it is believed
to be true and even t#oug# it is, in +a!t, true, be!ause o+ doubt ,#et#er it !an be
proved in !ourt or +ear o+ t#e e*pense o+ #aving to do so. "#e1 tend to ma0e onl1
statements ,#i!# Qsteer +ar ,ider o+ t#e unla,+ul zone.Q Speiser %. -andall, supra, 3(2
L.S. at ('F. "#e rule t#us dampens t#e vigor and limits t#e variet1 o+ publi! debate. ?t is
in!onsistent ,it# t#e =irst and =ourteent# Amendments. "#e !onstitutional guarantees
reHuire, ,e t#in0, a +ederal rule t#at pro#ibits a publi! oC!ial +rom re!overing damages
+or a de+amator1 +alse#ood relating to #is oC!ial !ondu!t unless #e proves t#at t#e
statement ,as made @+8BCA ,it# Qa!tual mali!eQ -- t#at is, ,it# 0no,ledge t#at it ,as
+alse or ,it# re!0less disregard o+ ,#et#er it ,as +alse or not. An o+t-!ited statement o+
a li0e rule, ,#i!# #as been adopted b1 a number o+ state !ourts,
@n8CA
is +ound in t#e
Sansas !ase o+ Cole"an %. 6ac$ennan, 24 San. 2.., J4 P. '4. 9.J)4<. "#e State
Attorne1 %eneral, a !andidate +or reele!tion and a member o+ t#e !ommission !#arged
,it# t#e management and !ontrol o+ t#e state s!#ool +und, sued a ne,spaper publis#er
+or alleged libel in an arti!le purporting to state +a!ts relating to #is oC!ial !ondu!t in
!onne!tion ,it# a s!#ool-+und transa!tion. "#e de+endant pleaded privilege and t#e trial
udge, over t#e plaintiAPs obe!tion, instru!ted t#e ur1 t#at
,#ere an arti!le is publis#ed and !ir!ulated among voters +or t#e sole purpose o+ giving
,#at t#e de+endant @+8B?A believes to be trut#+ul in+ormation !on!erning a !andidate
+or publi! oC!e and +or t#e purpose o+ enabling su!# voters to !ast t#eir ballot more
intelligentl1, and t#e ,#ole t#ing is done in good +ait# and ,it#out mali!e, t#e arti!le is
privileged, alt#oug# t#e prin!ipal matters !ontained in t#e arti!le ma1 be untrue, in
+a!t, and derogator1 to t#e !#ara!ter o+ t#e plaintiA, and in su!# a !ase t#e burden is on
t#e plaintiA to s#o, a!tual mali!e in t#e publi!ation o+ t#e arti!le.
?n ans,er to a spe!ial Huestion, t#e ur1 +ound t#at t#e plaintiA #ad not proved a!tual
mali!e, and a general verdi!t ,as returned +or t#e de+endant. Dn appeal, t#e Supreme
Court o+ Sansas, in an opinion b1 Justi!e Eur!#, reasoned as +ollo,s 924 San., at 2'5, J4
P. at '4F<:
?t is o+ t#e utmost !onseHuen!e t#at t#e people s#ould dis!uss t#e !#ara!ter and
Huali7!ations o+ !andidates +or t#eir suArages. "#e importan!e to t#e state and to
so!iet1 o+ su!# dis!ussions is so vast, and t#e advantages derived are so great, t#at
t#e1 more t#an !ounterbalan!e t#e in!onvenien!e o+ private persons ,#ose !ondu!t
ma1 be involved, and o!!asional inur1 to t#e reputations o+ individuals must 1ield to
t#e publi! ,el+are, alt#oug# at times su!# inur1 ma1 be great. "#e publi! bene7t +rom
publi!it1 is so great, and t#e !#an!e o+ inur1 to private !#ara!ter so small, t#at su!#
dis!ussion must be privileged.
"#e !ourt t#us sustained t#e trial !ourtPs instru!tion as a !orre!t statement o+ t#e la,,
sa1ing:
?n su!# a !ase t#e o!!asion gives rise to a privilege, Huali7ed to t#is e*tent: an1 one
!laiming to be de+amed b1 t#e !ommuni!ation must s#o, a!tual mali!e or go
remediless. "#is privilege e*tends to a great variet1 o+ sube!ts, and in!ludes matters
o+ @+8B8A publi! !on!ern, publi! men, and !andidates +or oC!e.
24 San. at 2'3, J4 P. at '4(.
Su!# a privilege +or !riti!ism o+ oC!ial !ondu!t
@n8?A
is appropriatel1 analogous to t#e
prote!tion a!!orded a publi! oC!ial ,#en #e is sued +or libel b1 a private !itizen. ?n (arr
%. 6atteo, 3F) L.S. (F5, (2(, t#is Court #eld t#e utteran!e o+ a +ederal oC!ial to be
absolutel1 privileged i+ made Q,it#in t#e outer perimeterQ o+ #is duties. "#e States
a!!ord t#e same immunit1 to statements o+ t#eir #ig#est oC!ers, alt#oug# some
diAerentiate t#eir lesser oC!ials and Huali+1 t#e privilege t#e1 eno1.
@n88A
Eut all #old
t#at all oC!ials are prote!ted unless a!tual mali!e !an be proved. "#e reason +or t#e
oC!ial privilege is said to be t#at t#e t#reat o+ damage suits ,ould ot#er,ise Qin#ibit
t#e +earless, vigorous, and eAe!tive administration o+ poli!ies o+ governmentQ and
Qdampen t#e ardor o+ all but t#e most resolute, or t#e most irresponsible, in t#e
unNin!#ing dis!#arge o+ t#eir duties.Q(arr %. 6atteo, supra, 3F) L.S. at (2.. Analogous
!onsiderations support t#e privilege +or t#e !itizen-!riti! o+ government. ?t is as mu!#
#is dut1 to !riti!ize as it is t#e oC!ialPs dut1 to administer. See 0hitney %.
California, '25 L.S. 3(2, 32( 9!on!urring opinion o+ Mr. Justi!e Erandeis<,
Huoted supra, p. '2). As Madison said, see supra p. '2(, Qt#e !ensorial po,er is in t#e
people over t#e %overnment, and not in t#e %overnment over t#e people.Q ?t ,ould give
publi! servants an unusti7ed pre+eren!e over t#e publi! t#e1 serve, i+ !riti!s o+ oC!ial
!ondu!t @+8B5A did not #ave a +air eHuivalent o+ t#e immunit1 granted to t#e oC!ials
t#emselves.
Ie !on!lude t#at su!# a privilege is reHuired b1 t#e =irst and =ourteent# Amendments.
???
Ie #old toda1 t#at t#e Constitution delimits a StatePs po,er to a,ard damages +or libel
in a!tions broug#t b1 publi! oC!ials against !riti!s o+ t#eir oC!ial !ondu!t. Sin!e t#is is
su!# an a!tion,
@n85A
t#e rule reHuiring proo+ o+ a!tual mali!e is appli!able. I#ile Alabama
la, apparentl1 reHuires proo+ o+ a!tual mali!e +or an a,ard o+ punitive
damages,
@n8:A
,#ere general damages are !on!erned mali!e is Qpresumed.Q Su!# a
presumption is in!onsistent@+8B:A ,it# t#e +ederal rule. Q"#e po,er to !reate
presumptions is not a means o+ es!ape +rom !onstitutional restri!tions,Q (ailey %.
Alaba"a, '.J L.S. '.J, '3J, Qt#e s#o,ing o+ mali!e reHuired +or t#e +or+eiture o+ t#e
privilege is not presumed but is a matter +or proo+ b1 t#e plaintiA. . . .Q $a&rence %.
#o, 3(2 Mi!#. .35, .5F, J2 $.I.'d 2.J, 2'( 9.J(J<.
@n89A
Sin!e t#e trial udge did not
instru!t t#e ur1 to diAerentiate bet,een general and punitive damages, it ma1 be t#at
t#e verdi!t ,as ,#oll1 an a,ard o+ one or t#e ot#er. Eut it is impossible to 0no,, in vie,
o+ t#e general verdi!t returned. Ee!ause o+ t#is un!ertaint1, t#e udgment must be
reversed and t#e !ase remanded. Stro"berg %. California, '43 L.S. 3(J, 3F2-
3F4G 0illia"s %. 'orth Carolina, 3.2 L.S. '42, 'J.-'J'G see 5ates %. ,nited States, 3(5
L.S. 'J4, 3..-3.'G Cra"er %. ,nited States, 3'( L.S. ., 3F, n. 5(.
Sin!e respondent ma1 see0 a ne, trial, ,e deem t#at !onsiderations o+ eAe!tive udi!ial
administration reHuire us to revie, t#e eviden!e in t#e present re!ord to
determine@+8B9A ,#et#er it !ould !onstitutionall1 support a udgment +or respondent.
"#is CourtPs dut1 is not limited to t#e elaboration o+ !onstitutional prin!iplesG ,e must
also in proper !ases revie, t#e eviden!e to ma0e !ertain t#at t#ose prin!iples #ave
been !onstitutionall1 applied. "#is is su!# a !ase, parti!ularl1 sin!e t#e Huestion is one
o+ alleged trespass a!ross Qt#e line bet,een spee!# un!onditionall1 guaranteed and
spee!# ,#i!# ma1 legitimatel1 be regulated.Q Speiser %. -andall, 3(2 L.S. (.3, ('(. ?n
!ases ,#ere t#at line must be dra,n, t#e rule is t#at ,e
e*amine +or ourselves t#e statements in issue and t#e !ir!umstan!es under ,#i!# t#e1
,ere made to see . . . ,#et#er t#e1 are o+ a !#ara!ter ,#i!# t#e prin!iples o+ t#e =irst
Amendment, as adopted b1 t#e Due Pro!ess Clause o+ t#e =ourteent# Amendment,
prote!t.
Penne)a"p %. #lorida, 3'4 L.S. 33., 33(G see also 2ne, Inc., %. 2lesen, 3(( L.S.
32.GSunshine (oo) Co. %. Su""er7eld, 3(( L.S. 32'. Ie must Qma0e an independent
e*amination o+ t#e ,#ole re!ord,Q Ed&ards %. South Carolina, 32' L.S. ''J, '3(, so as
to assure ourselves t#at t#e udgment does not !onstitute a +orbidden intrusion on t#e
7eld o+ +ree e*pression.
@n87A
Appl1ing t#ese standards, ,e !onsider t#at t#e proo+ presented to s#o, a!tual mali!e
la!0s t#e !onvin!ing @+8B7A !larit1 ,#i!# t#e !onstitutional standard demands, and
#en!e t#at it ,ould not !onstitutionall1 sustain t#e udgment +or respondent under t#e
proper rule o+ la,. "#e !ase o+ t#e individual petitioners reHuires little dis!ussion. Bven
assuming t#at t#e1 !ould !onstitutionall1 be +ound to #ave aut#orized t#e use o+ t#eir
names on t#e advertisement, t#ere ,as no eviden!e ,#atever t#at t#e1 ,ere a,are o+
an1 erroneous statements or ,ere in an1 ,a1 re!0less in t#at regard. "#e udgment
against t#em is t#us ,it#out !onstitutional support.
As to t#e "imes, ,e similarl1 !on!lude t#at t#e +a!ts do not support a 7nding o+ a!tual
mali!e. "#e statement b1 t#e "imesP Se!retar1 t#at, apart +rom t#e padlo!0ing
allegation, #e t#oug#t t#e advertisement ,as Qsubstantiall1 !orre!t,Q aAords no
!onstitutional ,arrant +or t#e Alabama Supreme CourtPs !on!lusion t#at it ,as a
!avalier ignoring o+ t#e +alsit1 o+ t#e advertisement -+rom ,#i!#/ t#e ur1 !ould not #ave
but been impressed ,it# t#e bad +ait# o+ "#e "imes, and its mali!iousness in+erable
t#ere+rom.
"#e statement does not indi!ate mali!e at t#e time o+ t#e publi!ationG even i+ t#e
advertisement ,as not Qsubstantiall1 !orre!tQ -- alt#oug# respondentPs o,n proo+s tend
to s#o, t#at it ,as -- t#at opinion ,as at least a reasonable one, and t#ere ,as no
eviden!e to impea!# t#e ,itnessP good +ait# in #olding it. "#e "imesP +ailure to retra!t
upon respondentPs demand, alt#oug# it later retra!ted upon t#e demand o+ %overnor
Patterson, is li0e,ise not adeHuate eviden!e o+ mali!e +or !onstitutional purposes.
I#et#er or not a +ailure to retra!t ma1 ever !onstitute su!# eviden!e, t#ere are t,o
reasons ,#1 it does not #ere. =irst, t#e letter ,ritten b1 t#e "imes reNe!ted a
reasonable doubt on its part as to ,#et#er t#e advertisement !ould reasonabl1 be ta0en
to re+er to respondent at all. Se!ond, it ,as not a 7nal re+usal, sin!e it as0ed +or an
e*planation on t#is point -- a reHuest t#at respondent !#ose to ignore. $or does t#e
retra!tion upon t#e demand o+ t#e %overnor suppl1 t#e @+8B6A ne!essar1 proo+. ?t ma1
be doubted t#at a +ailure to retra!t, ,#i!# is not itsel+ eviden!e o+ mali!e, !an
retroa!tivel1 be!ome su!# b1 virtue o+ a retra!tion subseHuentl1 made to anot#er part1.
Eut, in an1 event, t#at did not #appen #ere, sin!e t#e e*planation given b1 t#e "imesP
Se!retar1 +or t#e distin!tion dra,n bet,een respondent and t#e %overnor ,as a
reasonable one, t#e good +ait# o+ ,#i!# ,as not impea!#ed.
=inall1, t#ere is eviden!e t#at t#e "imes publis#ed t#e advertisement ,it#out !#e!0ing
its a!!ura!1 against t#e ne,s stories in t#e "imesP o,n 7les. "#e mere presen!e o+ t#e
stories in t#e 7les does not, o+ !ourse, establis# t#at t#e "imes Q0ne,Q t#e
advertisement ,as +alse, sin!e t#e state o+ mind reHuired +or a!tual mali!e ,ould #ave
to be broug#t #ome to t#e persons in t#e "imesP organization #aving responsibilit1 +or
t#e publi!ation o+ t#e advertisement. Iit# respe!t to t#e +ailure o+ t#ose persons to
ma0e t#e !#e!0, t#e re!ord s#o,s t#at t#e1 relied upon t#eir 0no,ledge o+ t#e good
reputation o+ man1 o+ t#ose ,#ose names ,ere listed as sponsors o+ t#e advertisement,
and upon t#e letter +rom A. P#ilip &andolp#, 0no,n to t#em as a responsible individual,
!erti+1ing t#at t#e use o+ t#e names ,as aut#orized. "#ere ,as testimon1 t#at t#e
persons #andling t#e advertisement sa, not#ing in it t#at ,ould render it una!!eptable
under t#e "imesP poli!1 o+ ree!ting advertisements !ontaining Qatta!0s o+ a personal
!#ara!terQG
@n86A
t#eir +ailure to ree!t it on t#is ground ,as not unreasonable. Ie
t#in0 @+8BBA t#e eviden!e against t#e "imes supports, at most, a 7nding o+ negligen!e
in +ailing to dis!over t#e misstatements, and is !onstitutionall1 insuC!ient to s#o, t#e
re!0lessness t#at is reHuired +or a 7nding o+ a!tual mali!e. Cf. Charles Par)er Co. %.
Sil%er City Crystal Co., .5' Conn. F)(, F.4, ..F A.'d 55), 55F 9.J((<G Phoeni
'e&spapers, Inc., %. Choisser, 4' Ariz. '2., '22-'24, 3.' P.'d .(), .(5-.(( 9.J(2<.
Ie also t#in0 t#e eviden!e ,as !onstitutionall1 de+e!tive in anot#er respe!t: it ,as
in!apable o+ supporting t#e ur1Ps 7nding t#at t#e allegedl1 libelous statements ,ere
made Qo+ and !on!erningQ respondent. &espondent relies on t#e ,ords o+ t#e
advertisement and t#e testimon1 o+ si* ,itnesses to establis# a !onne!tion bet,een it
and #imsel+. "#us, in #is brie+ to t#is Court, #e states:
"#e re+eren!e to respondent as poli!e !ommissioner is !lear +rom t#e ad. ?n addition,
t#e ur1 #eard t#e testimon1 o+ a ne,spaper editor . . . G a real estate and insuran!e
man . . . G t#e sales manager o+ a menPs !lot#ing store . . . G a +ood eHuipment man . . . G
a servi!e station operator . . . , and t#e operator o+ a tru!0 line +or ,#om respondent
#ad +ormerl1 ,or0ed. . . . Ba!# o+ t#ese ,itnesses stated t#at #e asso!iated t#e
statements ,it# respondent. . . .
9Citations to re!ord omitted.< "#ere ,as no re+eren!e to respondent in t#e
advertisement, eit#er b1 name or oC!ial position. A number o+ t#e allegedl1 libelous
statements -- t#e !#arges t#at t#e dining #all ,as padlo!0ed and t#at Dr. SingPs #ome
,as bombed, #is person assaulted, and a perur1 prose!ution instituted against #im --
did not even !on!ern t#e poli!eG despite t#e ingenuit1 o+ t#e arguments ,#i!# ,ould
atta!# t#is signi7!an!e to t#e ,ord Q"#e1,Q it is plain t#at t#ese statements !ould not
reasonabl1 be read as a!!using respondent o+ personal involvement in t#e
a!ts @+8B=A in Huestion. "#e statements upon ,#i!# respondent prin!ipall1 relies as
re+erring to #im are t#e t,o allegations t#at did !on!ern t#e poli!e or poli!e +un!tions:
t#at Qtru!0loads o+ poli!e . . . ringed t#e Alabama State College CampusQ a+ter t#e
demonstration on t#e State Capitol steps, and t#at Dr. Sing #ad been Qarrested . . .
seven times.Q "#ese statements ,ere +alse onl1 in t#at t#e poli!e #ad been Qdeplo1ed
nearQ t#e !ampus, but #ad not a!tuall1 QringedQ it, and #ad not gone t#ere in
!onne!tion ,it# t#e State Capitol demonstration, and in t#at Dr. Sing #ad been arrested
onl1 +our times. "#e ruling t#at t#ese dis!repan!ies bet,een ,#at ,as true and ,#at
,as asserted ,ere suC!ient to inure respondentPs reputation ma1 itsel+ raise
!onstitutional problems, but ,e need not !onsider t#em #ere. Alt#oug# t#e statements
ma1 be ta0en as re+erring to t#e poli!e, t#e1 did not, on t#eir +a!e, ma0e even an
obliHue re+eren!e to respondent as an individual. Support +or t#e asserted re+eren!e
must, t#ere+ore, be soug#t in t#e testimon1 o+ respondentPs ,itnesses. Eut none o+
t#em suggested an1 basis +or t#e belie+ t#at respondent #imsel+ ,as atta!0ed in t#e
advertisement be1ond t#e bare +a!t t#at #e ,as in overall !#arge o+ t#e Poli!e
Department and t#us bore oC!ial responsibilit1 +or poli!e !ondu!tG to t#e e*tent t#at
some o+ t#e ,itnesses t#oug#t respondent to #ave been !#arged ,it# ordering or
approving t#e !ondu!t or ot#er,ise being personall1 involved in it, t#e1 based t#is
notion not on an1 statements in t#e advertisement, and not on an1 eviden!e t#at #e
#ad, in +a!t, been so involved, but solel1 on t#e unsupported assumption t#at, be!ause
o+ #is oC!ial position, #e must #ave been.
@n8BA
"#is relian!e on t#e bare @+8=CA +a!t o+
respondentPs oC!ial position
@n8=A
,as made e*pli!it b1 t#e Supreme Court o+ Alabama.
"#at !ourt, in #olding t#at t#e trial !ourt Qdid not err in overruling t#e demurrer -o+ t#e
"imes/ in t#e aspe!t t#at t#e libelous @+8=?A matter ,as not o+ and !on!erning t#e
-plaintiA,/Q based its ruling on t#e proposition t#at:
Ie t#in0 it !ommon 0no,ledge t#at t#e average person 0no,s t#at muni!ipal agents,
su!# as poli!e and 7remen, and ot#ers, are under t#e !ontrol and dire!tion o+ t#e !it1
governing bod1, and more parti!ularl1 under t#e dire!tion and !ontrol o+ a single
!ommissioner. ?n measuring t#e per+orman!e or de7!ien!ies o+ su!# groups, praise or
!riti!ism is usuall1 atta!#ed to t#e oC!ial in !omplete !ontrol o+ t#e bod1.
'23 Ala., at F25-F2(, .55 So.'d at 3J.
"#is proposition #as disHuieting impli!ations +or !riti!ism o+ governmental !ondu!t. =or
good reason,
no !ourt o+ last resort in t#is !ountr1 #as ever #eld, or even suggested, t#at
prose!utions +or libel on government #ave an1 pla!e in t#e Ameri!an s1stem o+
urispruden!e.
City of Chicago %. 1ribune Co., 3)2 ?ll. (J(, F)., .3J $.B. @+8=8A 4F, 44 9.J'3<. "#e
present proposition ,ould sidestep t#is obsta!le b1 transmuting !riti!ism o+
government, #o,ever impersonal it ma1 seem on its +a!e, into personal !riti!ism, and
#en!e potential libel, o+ t#e oC!ials o+ ,#om t#e government is !omposed. "#ere is no
legal al!#em1 b1 ,#i!# a State ma1 t#us !reate t#e !ause o+ a!tion t#at ,ould
ot#er,ise be denied +or a publi!ation ,#i!#, as respondent #imsel+ said o+ t#e
advertisement, QreNe!ts not onl1 on me but on t#e ot#er Commissioners and t#e
!ommunit1.Q &aising as it does t#e possibilit1 t#at a good +ait# !riti! o+ government ,ill
be penalized +or #is !riti!ism, t#e proposition relied on b1 t#e Alabama !ourts stri0es at
t#e ver1 !enter o+ t#e !onstitutionall1 prote!ted area o+ +ree e*pression.
@n5CA
Ie #old
t#at su!# a proposition ma1 not !onstitutionall1 be utilized to establis# t#at an
ot#er,ise impersonal atta!0 on governmental operations ,as a libel o+ an oC!ial
responsible +or t#ose operations. Sin!e it ,as relied on e*!lusivel1 #ere, and t#ere ,as
no ot#er eviden!e to !onne!t t#e statements ,it# respondent, t#e eviden!e ,as
!onstitutionall1 insuC!ient to support a 7nding t#at t#e statements re+erred to
respondent.
"#e udgment o+ t#e Supreme Court o+ Alabama is reversed, and t#e !ase is remanded
to t#at !ourt +or +urt#er pro!eedings not in!onsistent ,it# t#is opinion.
-e%ersed and re"anded. @+8=5A
*
"oget#er ,it# $o. 5), Abernathy et al. %. Sulli%an, also on !ertiorari to t#e same !ourt,
argued Januar1 2, .JF5.
1.
A !op1 o+ t#e advertisement is printed in t#e Appendi* -omitted/.
2.
&espondent did not !onsider t#e !#arge o+ e*pelling t#e students to be appli!able to
#im, sin!e Qt#at responsibilit1 rests ,it# t#e State Department o+ Bdu!ation.Q
3.
Appro*imatel1 3J5 !opies o+ t#e edition o+ t#e "imes !ontaining t#e advertisement ,ere
!ir!ulated in Alabama. D+ t#ese, about 3( !opies ,ere distributed in Montgomer1
Count1. "#e total !ir!ulation o+ t#e "imes +or t#at da1 ,as appro*imatel1 F(),)))
!opies.
4.
Sin!e ,e sustain t#e !ontentions o+ all t#e petitioners under t#e =irst AmendmentPs
guarantees o+ +reedom o+ spee!# and o+ t#e press as applied to t#e States b1 t#e
=ourteent# Amendment, ,e do not de!ide t#e Huestions presented b1 t#e ot#er !laims
o+ violation o+ t#e =ourteent# Amendment. "#e individual petitioners !ontend t#at t#e
udgment against t#em oAends t#e Due Pro!ess Clause be!ause t#ere ,as no eviden!e
to s#o, t#at t#e1 #ad publis#ed or aut#orized t#e publi!ation o+ t#e alleged libel, and
t#at t#e Due Pro!ess and BHual Prote!tion Clauses ,ere violated b1 ra!ial segregation
and ra!ial bias in t#e !ourtroom. "#e "imes !ontends t#at t#e assumption o+ urisdi!tion
over its !orporate person b1 t#e Alabama !ourts overrea!#es t#e territorial limits o+ t#e
Due Pro!ess Clause. "#e latter !laim is +ore!losed +rom our revie, b1 t#e ruling o+ t#e
Alabama !ourts t#at t#e "imes entered a general appearan!e in t#e a!tion, and t#us
,aived its urisdi!tional obe!tionG ,e !annot sa1 t#at t#is ruling la!0s Q+air or
substantial supportQ in prior Alabama de!isions. See 1ho"pson %. 0ilson, ''5 Ala. 'JJ,
.5) So. 53J 9.J3'<Gco"pare 'AACP %. Alaba"a, 3(2 L.S. 55J, 5(5-5(4.
5.
See Ameri!an >a, ?nstitute, &estatement o+ "orts, O (J3, Comment b 9.J34<.
6.
8onigsberg %. State (ar of California, 3FF L.S. 3F, 5J, and n. .)G 1i"es #il" Corp. %. City
of Chicago, 3F( L.S. 53, 54G -oth %. ,nited States, 3(5 L.S. 52F, 54F-542G (eauharnais
%. Illinois, 353 L.S. '(), 'FFG Penne)a"p %. #lorida, 3'4 L.S. 33., 354-35JG Chaplins)y
%. 'e& Ha"pshire, 3.( L.S. (F4, (2'G 'ear %. 6innesota, '43 L.S. FJ2, 2.(.
7.
Herndon %. $o&ry, 3). L.S. '5'.
8.
(ridges %. California, 3.5 L.S. '('G Penne)a"p %. #lorida, 3'4 L.S. 33..
9.
.e Jonge %. 2regon, 'JJ L.S. 3(3.
10.
Ed&ards %. South Carolina, 32' L.S. ''J.
11.
-oth %. ,nited States, 3(5 L.S. 52F.
12.
'AACP %. (utton, 32. L.S. 5.(.
13.
See also Mill, Dn >ibert1 9D*+ord: Ela!0,ell, .J52<, at 52:
. . . -"/o argue sop#isti!all1, to suppress +a!ts or arguments, to misstate t#e elements o+
t#e !ase, or misrepresent t#e opposite opinion . . . , all t#is, even to t#e most
aggravated degree, is so !ontinuall1 done in per+e!t good +ait# b1 persons ,#o are not
!onsidered, and in man1 ot#er respe!ts ma1 not deserve to be !onsidered, ignorant or
in!ompetent t#at it is rarel1 possible, on adeHuate grounds, !ons!ientiousl1 to stamp
t#e misrepresentation as morall1 !ulpable, and still less !ould la, presume to inter+ere
,it# t#is 0ind o+ !ontroversial mis!ondu!t.
14.
"#e !limate in ,#i!# publi! oC!ials operate, espe!iall1 during a politi!al !ampaign, #as
been des!ribed b1 one !ommentator in t#e +ollo,ing terms:
C#arges o+ gross in!ompeten!e, disregard o+ t#e publi! interest, !ommunist s1mpat#ies,
and t#e li0e usuall1 #ave 7lled t#e air, and #ints o+ briber1, embezzlement, and ot#er
!riminal !ondu!t are not in+reHuent.
$oel, De+amation o+ Publi! DC!ers and Candidates, 5J Col.>.&ev. 42( 9.J5J<.
=or a similar des!ription ,ritten F) 1ears earlier, see C#ase, Criti!ism o+ Publi! DC!ers
and Candidates +or DC!e, '3 Am.>.&ev. 35F 9.44J<.
15.
"#e &eport on t#e @irginia &esolutions +urt#er stated:
-?/t is mani+estl1 impossible to punis# t#e intent to bring t#ose ,#o administer t#e
government into disrepute or !ontempt, ,it#out stri0ing at t#e rig#t o+ +reel1 dis!ussing
publi! !#ara!ters and measures, . . . ,#i!#, again, is eHuivalent to a prote!tion o+ t#ose
,#o administer t#e government, i+ t#e1 s#ould at an1 time deserve t#e !ontempt or
#atred o+ t#e people, against being e*posed to it b1 +ree animadversions on t#eir
!#ara!ters and !ondu!t. $or !an t#ere be a doubt . . . t#at a government t#us
entren!#ed in penal statutes against t#e ust and natural eAe!ts o+ a !ulpable
administration ,ill easil1 evade t#e responsibilit1 ,#i!# is essential to a +ait#+ul
dis!#arge o+ its dut1.
>et it be re!olle!ted, lastl1, t#at t#e rig#t o+ ele!ting t#e members o+ t#e government
!onstitutes more parti!ularl1 t#e essen!e o+ a +ree and responsible government. "#e
value and eC!a!1 o+ t#is rig#t depends on t#e 0no,ledge o+ t#e !omparative merits
and demerits o+ t#e !andidates +or publi! trust, and on t#e eHual +reedom,
!onseHuentl1, o+ e*amining and dis!ussing t#ese merits and demerits o+ t#e !andidates
respe!tivel1.
5 BlliotPs Debates, supra, p. (2(.
16.
"#e A!t e*pired, b1 its terms, in .4)..
17.
Cf. #ar"ers ,nion %. 0.A5, 3F) L.S. ('(, (3(.
18.
"#e "imes states t#at +our ot#er libel suits based on t#e advertisement #ave been 7led
against it b1 ot#ers ,#o #ave served as Montgomer1 Cit1 Commissioners and b1 t#e
%overnor o+ AlabamaG t#at anot#er R()),))) verdi!t #as been a,arded in t#e onl1 one
o+ t#ese !ases t#at #as 1et gone to trial, and t#at t#e damages soug#t in t#e ot#er
t#ree total R',))),))).
19.
Bven a +alse statement ma1 be deemed to ma0e a valuable !ontribution to publi!
debate, sin!e it brings about Qt#e !learer per!eption and livelier impression o+ trut#,
produ!ed b1 its !ollision ,it# error.Q Mill, Dn >ibert1 9D*+ord: Ela!0,ell, .J52<, at
.(G see also Milton, Areopagitia, in Prose Ior0s 9Yale, .J(J<, @ol. ??, at (F..
20.
E.g., Ponder %. Cobb, '(2 $.C. '4., 'JJ, .'F S.B.'d F2, 4) 9.JF'<G $a&rence %. #o, 3(2
Mi!#. .35, .5F, J2 $.I.'d 2.J, 2'( 9.J(J<G Stice %. (eacon 'e&spaper Corp., .4( San.
F., F(-F2, 35) P.'d 3JF, 5))-5). 9.J(J<G (ailey %. Charleston 6ail Assn., .'F I.@a. 'J',
3)2, '2 S.B.'d 432, 455 9.J53<G Salinger %. Co&les, .J( ?o,a 423, 44J, .J. $.I. .F2,
.25 9.J''<G Sni%ely %. -ecord Publishing Co., .4( Cal. (F(, (2.-(2F, .J4 P. .
9.J'.<G 6c$ean %. 6erri"an, 5' S.D. 3J5, .2( $.I. 424 9.J')<. Appl1ing t#e same rule
to !andidates +or publi! oC!e, see, e.g., Phoeni 'e&spapers %. Choisser, 4' Ariz. '2.,
'2F-'22, 3.' P.'d .(), .(5 9.J(2<G #riedell %. (la)ely Printing Co., .F3 Minn. ''F, '3),
')3 $.I. J25, J2( 9.J'(<. And see Chagnon %. ,nion/$eader Corp., .)3 $.8. 5'F, 534,
.25 A.'d 4'(, 433 9.JF.<, cert. denied, 3FJ L.S. 43).
"#e !onsensus o+ s!#olarl1 opinion apparentl1 +avors t#e rule t#at is #ere
adopted. E.g.,8arper and James, "orts, O (.'F, at 55J-5() 9.J(F<G $oel, De+amation o+
Publi! DC!ers and Candidates, 5J Col.>.&ev. 42(, 4J.-4J(, 4J2, J)3 9.J5J<G 8allen, =air
Comment, 4 "e*.>.&ev. 5., F. 9.J'J<G Smit#, C#arges Against Candidates, .4
Mi!#.>.&ev. ., ..( 9.J.J<G C#ase, Criti!ism o+ Publi! DC!ers and Candidates +or DC!e,
'3 Am.>.&ev. 35F, 3F2-32. 9.44J<G Coole1, Constitutional >imitations 92t# ed., >ane,
.J)3<, at F)5, F.F-F'4. (ut see, e.g., Ameri!an >a, ?nstitute, &estatement o+ "orts,
O (J4, Comment a 9.J34< 9reversing t#e position ta0en in "entative Dra+t .3, O .)5.9'<
9.J3F<<G @eeder, =reedom o+ Publi! Dis!ussion, '3 8arv.>.&ev. 5.3, 5.J 9.J.)<.
21.
"#e privilege immunizing #onest misstatements o+ +a!t is o+ten re+erred to as a
Q!onditionalQ privilege, to distinguis# it +rom t#e QabsoluteQ privilege re!ognized in
udi!ial, legislative, administrative and e*e!utive pro!eedings. See, e.g., Prosser, "orts
9'd ed., .J((<, O J(.
22.
See . 8arper and James, "orts, O (.'3, at 5'J-53) 9.J(F<G Prosser, "orts 9'd ed., .J((<,
at F.'-F.3G Ameri!an >a, ?nstitute, &estatement o+ "orts 9.J34<, O (J..
23.
Ie #ave no o!!asion #ere to determine #o, +ar do,n into t#e lo,er ran0s o+
government emplo1ees t#e Qpubli! oC!ialQ designation ,ould e*tend +or purposes o+
t#is rule, or ot#er,ise to spe!i+1 !ategories o+ persons ,#o ,ould or ,ould not be
in!luded. Cf. (arr %. 6atteo, 3F) L.S. (F5, (23-(2(. $or need ,e #ere determine t#e
boundaries o+ t#e QoC!ial !ondu!tQ !on!ept. ?t is enoug# +or t#e present !ase t#at
respondentPs position as an ele!ted !it1 !ommissioner !learl1 made #im a publi! oC!ial,
and t#at t#e allegations in t#e advertisement !on!erned ,#at ,as allegedl1 #is oC!ial
!ondu!t as Commissioner in !#arge o+ t#e Poli!e Department. As to t#e statements
alleging t#e assaulting o+ Dr. Sing and t#e bombing o+ #is #ome, it is immaterial t#at
t#e1 mig#t not be !onsidered to involve respondentPs oC!ial !ondu!t i+ #e #imsel+ #ad
been a!!used o+ perpetrating t#e assault and t#e bombing. &espondent does not !laim
t#at t#e statements !#arged #im personall1 ,it# t#ese a!tsG #is !ontention is t#at t#e
advertisement !onne!ts #im ,it# t#em onl1 in #is oC!ial !apa!it1 as t#e Commissioner
supervising t#e poli!e, on t#e t#eor1 t#at t#e poli!e mig#t be eHuated ,it# t#e Q"#e1Q
,#o did t#e bombing and assaulting. "#us, i+ t#ese allegations !an be read as re+erring
to respondent at all, t#e1 must be read as des!ribing #is per+orman!e o+ #is oC!ial
duties.
24.
Johnson Publishing Co. %. .a%is, '2. Ala. 525, 542, .'5 So.'d 55., 5() 9.JF)<. "#us, t#e
trial udge #ere instru!ted t#e ur1 t#at
mere negligen!e or !arelessness is not eviden!e o+ a!tual mali!e or mali!e, in +a!t, and
does not usti+1 an a,ard o+ e*emplar1 or punitive damages in an a!tion +or libel.
"#e !ourt re+used, #o,ever, to give t#e +ollo,ing instru!tion ,#i!# #ad been reHuested
b1 t#e "imes:
? !#arge 1ou . . . t#at punitive damages, as t#e name indi!ates, are designed to punis#
t#e de+endant, t#e $e, Yor0 "imes Compan1, a !orporation, and t#e ot#er de+endants
in t#is !ase, . . . and ? +urt#er !#arge 1ou t#at su!# punitive damages ma1 be a,arded
onl1 in t#e event t#at 1ou, t#e ur1, are !onvin!ed b1 a +air preponderan!e o+ t#e
eviden!e t#at t#e de+endant . . . ,as motivated b1 personal ill ,ill, t#at is a!tual intent
to do t#e plaintiA #arm, or t#at t#e de+endant . . . ,as guilt1 o+ gross negligen!e and
re!0lessness, and not o+ ust ordinar1 negligen!e or !arelessness in publis#ing t#e
matter !omplained o+ so as to indi!ate a ,anton disregard o+ plaintiAPs rig#ts.
"#e trial !ourtPs error in +ailing to reHuire an1 7nding o+ a!tual mali!e +or an a,ard o+
general damages ma0es it unne!essar1 +or us to !onsider t#e suC!ien!1 under t#e
+ederal standard o+ t#e instru!tions regarding a!tual mali!e t#at ,ere given as to
punitive damages.
25.
Accord, Cole"an %. 6ac$ennan, supra, 24 San., at 25., J4 P. at 'J'G *ough %. 1ribune/
Journal Co., 2( ?da#o ()', (.), '2( P.'d FF3, FF4 9.J(5<.
26.
"#e Sevent# Amendment does not, as respondent !ontends, pre!lude su!# an
e*amination b1 t#is Court. "#at Amendment, providing t#at Qno +a!t tried b1 a ur1 s#all
be ot#er,ise ree*amined in an1 Court o+ t#e Lnited States t#an a!!ording to t#e rules
o+ t#e !ommon la,,Q is appli!able to state !ases !oming #ere. Chicago, (. 9 :. -. Co. %.
Chicago, .FF L.S. ''F, '5'-'53G cf. 1he Justices %. 6urray, J Iall. '25. Eut its ban on
ree*amination o+ +a!ts does not pre!lude us +rom determining ,#et#er governing rules
o+ +ederal la, #ave been properl1 applied to t#e +a!ts.
-"/#is Court ,ill revie, t#e 7nding o+ +a!ts b1 a State !ourt . . . ,#ere a !on!lusion o+
la, as to a =ederal rig#t and a 7nding o+ +a!t are so intermingled as to ma0e it
ne!essar1, in order to pass upon t#e =ederal Huestion, to anal1ze t#e +a!ts.
#is)e %. 8ansas, '25 L.S. 34), 34(-34F. See also Haynes %. 0ashington, 323 L.S. ()3,
(.(-(.F.
27.
"#e "imes #as set +ort# in a boo0let its QAdvertising A!!eptabilit1 Standards.Q >isted
among t#e !lasses o+ advertising t#at t#e ne,spaper does not a!!ept are
advertisements t#at are Q+raudulent or de!eptive,Q t#at are Qambiguous in ,ording and .
. . ma1 mislead,Q and t#at !ontain Qatta!0s o+ a personal !#ara!ter.Q ?n repl1ing to
respondentPs interrogatories be+ore t#e trial, t#e Se!retar1 o+ t#e "imes stated t#at,
as t#e advertisement made no atta!0s o+ a personal !#ara!ter upon an1 individual and
ot#er,ise met t#e advertising a!!eptabilit1 standards promulgated,
it #ad been approved +or publi!ation.
28.
&espondentPs o,n testimon1 ,as t#at,
as Commissioner o+ Publi! AAairs, it is part o+ m1 dut1 to supervise t#e Poli!e
Department, and ? !ertainl1 +eel li0e it -a statement/ is asso!iated ,it# me ,#en it
des!ribes poli!e a!tivities.
8e t#oug#t t#at, Qb1 virtue o+ being Poli!e Commissioner and Commissioner o+ Publi!
AAairs,Q #e ,as !#arged ,it# Qan1 a!tivit1 on t#e part o+ t#e Poli!e Department.Q QI#en
it des!ribes poli!e a!tion, !ertainl1 ? +eel it reNe!ts on me as an individual.Q 8e added
t#at Q-i/t is m1 +eeling t#at it reNe!ts not onl1 on me, but on t#e ot#er Commissioners
and t#e !ommunit1.Q
%rover C. 8all testi7ed t#at, to #im, t#e t#ird paragrap# o+ t#e advertisement !alled to
mind Qt#e Cit1 government -- t#e Commissioners,Q and t#at,
no, t#at 1ou as0 it, ? ,ould naturall1 t#in0 a little more about t#e poli!e Commissioner,
be!ause #is responsibilit1 is e*!lusivel1 ,it# t#e !onstabular1.
?t ,as Qt#e p#rase about starvationQ t#at led to t#e asso!iationG Qt#e ot#er didnPt #it me
,it# an1 parti!ular +or!e.Q
Arnold D. Ela!0,ell testi7ed t#at t#e t#ird paragrap# ,as asso!iated in #is mind ,it#
Qt#e Poli!e Commissioner and t#e poli!e +or!e. "#e people on t#e poli!e +or!e.Q ?+ #e #ad
believed t#e statement about t#e padlo!0ing o+ t#e dining #all, #e ,ould #ave t#oug#t
t#at t#e people on our poli!e +or!e or t#e #eads o+ our poli!e +or!e ,ere a!ting ,it#out
t#eir urisdi!tion, and ,ould not be !ompetent +or t#e position.
Q? ,ould assume t#at t#e Commissioner #ad ordered t#e poli!e +or!e to do t#at, and
t#ere+ore it ,ould be #is responsibilit1.Q
8arr1 I. Samins01 asso!iated t#e statement about Qtru!0loads o+ poli!eQ ,it#
respondent, Qbe!ause #e is t#e Poli!e Commissioner.Q 8e t#oug#t t#at t#e re+eren!e to
arrests in t#e si*t# paragrap#
impli!ates t#e Poli!e Department, ? t#in0, or t#e aut#orities t#at ,ould do t#at -- arrest
+ol0s +or speeding and loitering and su!# as t#at.
As0ed ,#et#er #e ,ould asso!iate ,it# respondent a ne,spaper report t#at t#e poli!e
#ad Qbeat somebod1 up or assaulted t#em on t#e streets o+ Montgomer1,Q #e replied:
? still sa1 #e is t#e Poli!e Commissioner and t#ose men are ,or0ing dire!tl1 under #im,
and t#ere+ore ? ,ould t#in0 t#at #e ,ould #ave somet#ing to do ,it# it.
?n general, #e said, Q? loo0 at Mr. Sullivan ,#en ? see t#e Poli!e Department.Q
8. M. Pri!e, Sr., testi7ed t#at #e asso!iated t#e 7rst senten!e o+ t#e t#ird paragrap# ,it#
respondent be!ause:
? ,ould ust automati!all1 !onsider t#at t#e Poli!e Commissioner in Montgomer1 ,ould
#ave to put #is approval on t#ose 0ind o+ t#ings as an individual.
Iilliam M. Par0er, Jr., testi7ed t#at #e asso!iated t#e statements in t#e t,o paragrap#s
,it# Qt#e Commissioners o+ t#e Cit1 o+ Montgomer1,Q and, sin!e respondent Q,as t#e
Poli!e Commissioner,Q #e Qt#oug#t o+ #im 7rst.Q 8e told t#e e*amining !ounsel: Q? t#in0,
i+ 1ou ,ere t#e Poli!e Commissioner, ? ,ould #ave t#oug#t it ,as spea0ing o+ 1ou.Q
8ora!e I. I#ite, respondentPs +ormer emplo1er, testi7ed t#at t#e statement about
Qtru!0loads o+ poli!eQ made #im t#in0 o+ respondent Qas being t#e #ead o+ t#e Poli!e
Department.Q As0ed ,#et#er #e read t#e statement as !#arging respondent #imsel+
,it# ringing t#e !ampus or #aving s#otguns and tear gas, #e replied: QIell, ? t#oug#t o+
#is department being !#arged ,it# it, 1es, sir. 8e is t#e #ead o+ t#e Poli!e Department,
as ? understand it.Q 8e +urt#er said t#at t#e reason #e ,ould #ave been un,illing to
reemplo1 respondent i+ #e #ad believed t#e advertisement ,as Qt#e +a!t t#at #e allo,ed
t#e Poli!e Department to do t#e t#ings t#at t#e paper sa1 #e did.Q
29.
Co"pare Ponder %. Cobb, '(2 $.C. '4., .'F S.B.'d F2 9.JF'<.
30.
?nso+ar as t#e proposition means onl1 t#at t#e statements about poli!e !ondu!t libeled
respondent b1 impli!itl1 !riti!izing #is abilit1 to run t#e Poli!e Department, re!over1 is
also pre!luded in t#is !ase b1 t#e do!trine o+ +air !omment. See Ameri!an >a, ?nstitute,
&estatement o+ "orts 9.J34<, O F)2. Sin!e t#e =ourteent# Amendment reHuires
re!ognition o+ t#e !onditional privilege +or #onest misstatements o+ +a!t, it +ollo,s t#at a
de+ense o+ +air !omment must be aAorded +or #onest e*pression o+ opinion based upon
privileged, as ,ell as true, statements o+ +a!t. Eot# de+enses are, o+ !ourse, de+easible i+
t#e publi! oC!ial proves a!tual mali!e, as ,as not done #ere.
TOP
C(n$**ene
E>ACS, J., Con!urring Dpinion
M&. JLS"?CB E>ACS, ,it# ,#om M&. JLS"?CB DDL%>AS oins, !on!urring.
? !on!ur in reversing t#is #al+-million-dollar udgment against t#e $e, Yor0 "imes
Compan1 and t#e +our individual de+endants. ?n reversing, t#e Court #olds t#at
t#e Constitution delimits a StatePs po,er to a,ard damages +or libel in a!tions broug#t
b1 publi! oC!ials against !riti!s o+ t#eir oC!ial !ondu!t.
Ante, p. '43. ? base m1 vote to reverse on t#e belie+ t#at t#e =irst and =ourteent#
Amendments not merel1 QdelimitQ a StatePs po,er to a,ard damages to Qpubli! oC!ials
against !riti!s o+ t#eir oC!ial !ondu!t,Q but !ompletel1 pro#ibit a State +rom e*er!ising
su!# a po,er. "#e Court goes on to #old t#at a State !an sube!t su!# !riti!s to
damages i+ Qa!tual mali!eQ !an be proved against t#em. QMali!e,Q even as de7ned b1
t#e Court, is an elusive, abstra!t !on!ept, #ard to prove and #ard to disprove. "#e
reHuirement t#at mali!e be proved provides, at best, an evanes!ent prote!tion +or t#e
rig#t !riti!all1 to dis!uss publi! aAairs, and !ertainl1 does not measure up to t#e sturd1
sa+eguard embodied in t#e =irst Amendment. Lnli0e t#e Court, t#ere+ore, ? vote to
reverse e*!lusivel1 on t#e ground t#at t#e "imes and t#e individual de+endants #ad an
absolute, un!onditional !onstitutional rig#t to publis# in t#e "imes advertisement t#eir
!riti!isms o+ t#e Montgomer1 agen!ies and oC!ials. ? do not base m1 vote to reverse on
an1 +ailure to prove t#at t#ese individual de+endants signed t#e advertisement or t#at
t#eir !riti!ism o+ t#e Poli!e Department ,as aimed at t#e plaintiA Sullivan, ,#o ,as
t#en t#e Montgomer1 Cit1 Commissioner #aving supervision o+ t#e !it1Ps poli!eG +or
present purposes, ? assume t#ese t#ings ,ere proved. $or is m1 reason +or reversal t#e
size o+ t#e #al+-million-dollar udgment, large as it is. ?+ Alabama #as !onstitutional
po,er to use its !ivil libel la, to impose damages on t#e press +or !riti!izing t#e ,a1
publi! oC!ials per+orm or +ail @+8=:Ato per+orm t#eir duties, ? 0no, o+ no provision in
t#e =ederal Constitution ,#i!# eit#er e*pressl1 or impliedl1 bars t#e State +rom 7*ing
t#e amount o+ damages.
"#e #al+-million-dollar verdi!t does give dramati! proo+, #o,ever, t#at state libel la,s
t#reaten t#e ver1 e*isten!e o+ an Ameri!an press virile enoug# to publis# unpopular
vie,s on publi! aAairs and bold enoug# to !riti!ize t#e !ondu!t o+ publi! oC!ials. "#e
+a!tual ba!0ground o+ t#is !ase emp#asizes t#e imminen!e and enormit1 o+ t#at t#reat.
Dne o+ t#e a!ute and #ig#l1 emotional issues in t#is !ountr1 arises out o+ eAorts o+
man1 people, even in!luding some publi! oC!ials, to !ontinue state-!ommanded
segregation o+ ra!es in t#e publi! s!#ools and ot#er publi! pla!es despite our several
#oldings t#at su!# a state pra!ti!e is +orbidden b1 t#e =ourteent# Amendment.
Montgomer1 is one o+ t#e lo!alities in ,#i!# ,idespread #ostilit1 to desegregation #as
been mani+ested. "#is #ostilit1 #as sometimes e*tended itsel+ to persons ,#o +avor
desegregation, parti!ularl1 to so-!alled Qoutside agitators,Q a term ,#i!# !an be made
to 7t papers li0e t#e "imes, ,#i!# is publis#ed in $e, Yor0. "#e s!ar!it1 o+ testimon1 to
s#o, t#at Commissioner Sullivan suAered an1 a!tual damages at all suggests t#at
t#ese +eelings o+ #ostilit1 #ad at least as mu!# to do ,it# rendition o+ t#is #al+-million-
dollar verdi!t as did an appraisal o+ damages. @ie,ed realisti!all1, t#is re!ord lends
support to an in+eren!e t#at, instead o+ being damaged, Commissioner SullivanPs
politi!al, so!ial, and 7nan!ial prestige #as li0el1 been en#an!ed b1 t#e "imesP
publi!ation. Moreover, a se!ond #al+-million-dollar libel verdi!t against t#e "imes based
on t#e same advertisement #as alread1 been a,arded to anot#er Commissioner. "#ere,
a ur1 again gave t#e +ull amount !laimed. "#ere is no reason to believe t#at t#ere are
not more su!# #uge verdi!ts lur0ing ust around t#e !orner +or t#e "imes or an1 ot#er
ne,spaper or broad!aster ,#i!# @+8=9A mig#t dare to !riti!ize publi! oC!ials. ?n +a!t,
brie+s be+ore us s#o, t#at, in Alabama, t#ere are no, pending eleven libel suits b1 lo!al
and state oC!ials against t#e "imes see0ing R(,F)),))), and 7ve su!# suits against t#e
Columbia Eroad!asting S1stem see0ing R.,2)),))). Moreover, t#is te!#niHue +or
#arassing and punis#ing a +ree press -- no, t#at it #as been s#o,n to be possible -- is
b1 no means limited to !ases ,it# ra!ial overtonesG it !an be used in ot#er 7elds ,#ere
publi! +eelings ma1 ma0e, lo!al as ,ell as out-o+-state, ne,spapers eas1 pre1 +or libel
verdi!t see0ers.
?n m1 opinion, t#e =ederal Constitution #as dealt ,it# t#is deadl1 danger to t#e press in
t#e onl1 ,a1 possible ,it#out leaving t#e +ree press open to destru!tion -- b1 granting
t#e press an absolute immunit1 +or !riti!ism o+ t#e ,a1 publi! oC!ials do t#eir publi!
dut1.Co"pare (arr %. 6atteo, 3F) L.S. (F5. Stopgap measures li0e t#ose t#e Court
adopts are, in m1 udgment, not enoug#. "#is re!ord !ertainl1 does not indi!ate t#at
an1 diAerent verdi!t ,ould #ave been rendered #ere ,#atever t#e Court #ad !#arged
t#e ur1 about Qmali!e,Q Qtrut#,Q Qgood motives,Q Qusti7able ends,Q or an1 ot#er legal
+ormulas ,#i!#, in t#eor1, ,ould prote!t t#e press. $or does t#e re!ord indi!ate t#at
an1 o+ t#ese legalisti! ,ords ,ould #ave !aused t#e !ourts belo, to set aside or to
redu!e t#e #al+-million-dollar verdi!t in an1 amount.
? agree ,it# t#e Court t#at t#e =ourteent# Amendment made t#e =irst appli!able to t#e
States.
@n?A
"#is means to me t#at, sin!e t#e adoption o+ t#e =ourteent# Amendment, a
State #as no more po,er t#an t#e =ederal %overnment to use a !ivil libel la, or an1
ot#er la, to impose damages +or merel1 dis!ussing publi! aAairs and !riti!izing publi!
oC!ials. "#e po,er o+ t#e Lnited @+8=7A States to do t#at is, in m1 udgment, pre!isel1
nil. Su!# ,as t#e general vie, #eld ,#en t#e =irst Amendment ,as adopted, and ever
sin!e.
@n8A
Congress never #as soug#t to !#allenge t#is vie,point b1 passing an1 !ivil
libel la,. ?t did pass t#e Sedition A!t in .2J4,
@n5A
,#i!# made it a !rime -- Qseditious
libelQ -- to !riti!ize +ederal oC!ials or t#e =ederal %overnment. As t#e CourtPs opinion
!orre!tl1 points out, #o,ever, ante, pp. '23-'2F, t#at A!t !ame to an ignominious end
and, b1 !ommon !onsent, #as generall1 been treated as #aving been a ,#oll1
unusti7able and mu!# to be regretted violation o+ t#e =irst Amendment. Sin!e t#e =irst
Amendment is no, made appli!able to t#e States b1 t#e =ourteent#, it no more permits
t#e States to impose damages +or libel t#an it does t#e =ederal %overnment.
Ie ,ould, ? t#in0, more +ait#+ull1 interpret t#e =irst Amendment b1 #olding t#at, at t#e
ver1 least, it leaves t#e people and t#e press +ree to !riti!ize oC!ials and dis!uss publi!
aAairs ,it# impunit1. "#is $ation o+ ours ele!ts man1 o+ its important oC!ialsG so do t#e
States, t#e muni!ipalities, t#e !ounties, and even man1 pre!in!ts. "#ese oC!ials are
responsible to t#e people +or t#e ,a1 t#e1 per+orm t#eir duties. I#ile our Court #as
#eld t#at some 0inds o+ spee!# and ,ritings, su!# as Qobs!enit1,Q -oth %. ,nited
States, 3(5 L.S. 52F, and Q7g#ting ,ords,Q Chaplins)y %. 'e& Ha"pshire, 3.( L.S. (F4,
are not e*pression ,it#in t#e prote!tion o+ t#e =irst Amendment,
@n:A
+reedom to dis!uss
publi! aAairs and publi! oC!ials @+8=6A is unHuestionabl1, as t#e Court toda1 #olds, t#e
0ind o+ spee!# t#e =irst Amendment ,as primaril1 designed to 0eep ,it#in t#e area o+
+ree dis!ussion. "o punis# t#e e*er!ise o+ t#is rig#t to dis!uss publi! aAairs or to penalize
it t#roug# libel udgments is to abridge or s#ut oA dis!ussion o+ t#e ver1 0ind most
needed. "#is $ation, ? suspe!t, !an live in pea!e ,it#out libel suits based on publi!
dis!ussions o+ publi! aAairs and publi! oC!ials. Eut ? doubt t#at a !ountr1 !an live in
+reedom ,#ere its people !an be made to suAer p#1si!all1 or 7nan!iall1 +or !riti!izing
t#eir government, its a!tions, or its oC!ials.
=or a representative demo!ra!1 !eases to e*ist t#e moment t#at t#e publi!
+un!tionaries are b1 an1 means absolved +rom t#eir responsibilit1 to t#eir !onstituents,
and t#is #appens ,#enever t#e !onstituent !an be restrained in an1 manner +rom
spea0ing, ,riting, or publis#ing #is opinions upon an1 publi! measure, or upon t#e
!ondu!t o+ t#ose ,#o ma1 advise or e*e!ute it.
@n9A
An un!onditional rig#t to sa1 ,#at one pleases about publi! aAairs is ,#at ? !onsider to
be t#e minimum guarantee o+ t#e =irst Amendment.
@n7A
? regret t#at t#e Court #as stopped s#ort o+ t#is #olding indispensable to preserve our
+ree press +rom destru!tion.
.. See !ases !olle!ted in Speiser %. -andall, 3(2 L.S. (.3, (3) 9!on!urring opinion<.
'. See, e.g., . "u!0er, Ela!0stonePs Commentaries 9.4)3<, 'J2-'JJ 9editorPs appendi*<.
St. %eorge "u!0er, a distinguis#ed @irginia urist, too0 part in t#e Annapolis Convention
o+ .24F, sat on bot# state and +ederal !ourts, and ,as ,idel1 0no,n +or #is ,ritings on
udi!ial and !onstitutional sube!ts.
3. A!t o+ Jul1 .5, .2J4, . Stat. (JF.
5. (ut see S"ith %. California, 3F. L.S. .52, .(( 9!on!urring opinion<G -oth %. ,nited
States, 3(5 L.S. 52F, ()4 9dissenting opinion<.
(. . "u!0er, Ela!0stonePs Commentaries 9.4)3<, 'J2 9editorPs appendi*<G cf. Erant,
Seditious >ibel: M1t# and &ealit1, 3J $.Y.L.>.&ev. ..
F. Cf. Mei0leo#n, =ree Spee!# and ?ts &elation to Sel+-%overnment 9.J54<.
TOP
C(n$**ene
%D>DEB&%, J., Con!urring in t#e &esult
M&. JLS"?CB %D>DEB&%, ,it# ,#om M&. JLS"?CB DDL%>AS oins, !on!urring in t#e
result.
"#e Court toda1 announ!es a !onstitutional standard ,#i!# pro#ibits
a publi! oC!ial +rom re!overing damages +or a de+amator1 +alse#ood relating to #is
oC!ial !ondu!t unless #e proves t#at t#e statement ,as made ,it# @+8=BA Qa!tual
mali!eQ -- t#at is, ,it# 0no,ledge t#at it ,as +alse or ,it# re!0less disregard o+ ,#et#er
it ,as +alse or not.
Ante at '2J-'4). "#e Court t#us rules t#at t#e Constitution gives !itizens and
ne,spapers a Q!onditional privilegeQ immunizing nonmali!ious misstatements o+ +a!t
regarding t#e oC!ial !ondu!t o+ a government oC!er. "#e impressive arra1 o+
#istor1
@n?A
and pre!edent mars#aled b1 t#e Court, #o,ever, !on7rms m1 belie+ t#at t#e
Constitution aAords greater prote!tion t#an t#at provided b1 t#e CourtPs standard to
!itizen and press in e*er!ising t#e rig#t o+ publi! !riti!ism.
?n m1 vie,, t#e =irst and =ourteent# Amendments to t#e Constitution aAord to t#e
!itizen and to t#e press an absolute, un!onditional privilege to !riti!ize oC!ial !ondu!t
despite t#e #arm ,#i!# ma1 No, +rom e*!esses and abuses. "#e prized Ameri!an rig#t
Qto spea0 onePs mind,Q cf. (ridges % California, 3.5 L.S. '(', '2), about publi! oC!ials
and aAairs needs Qbreat#ing spa!e to survive,Q 'AACP %. (utton, 32. L.S. 5.(, 533. "#e
rig#t s#ould not depend upon a probing b1 t#e ur1 o+ t#e motivation
@n8A
o+ t#e !itizen or
press. "#e t#eor1 @+8==A o+ our Constitution is t#at ever1 !itizen ma1 spea0 #is mind
and ever1 ne,spaper e*press its vie, on matters o+ publi! !on!ern, and ma1 not be
barred +rom spea0ing or publis#ing be!ause t#ose in !ontrol o+ government t#in0 t#at
,#at is said or ,ritten is un,ise, un+air, +alse, or mali!ious. ?n a demo!rati! so!iet1, one
,#o assumes to a!t +or t#e !itizens in an e*e!utive, legislative, or udi!ial !apa!it1 must
e*pe!t t#at #is oC!ial a!ts ,ill be !ommented upon and !riti!ized. Su!# !riti!ism
!annot, in m1 opinion, be muzzled or deterred b1 t#e !ourts at t#e instan!e o+ publi!
oC!ials under t#e label o+ libel.
?t #as been re!ognized t#at Qprose!utions +or libel on government #ave -no/ pla!e in t#e
Ameri!an s1stem o+ urispruden!e.Q City of Chicago %. 1ribune Co., 3)2 ?ll. (J(, F)., .3J
$.B. 4F, 44. ? +ull1 agree. %overnment, #o,ever, is not an abstra!tionG it is made up o+
individuals -- o+ governors responsible to t#e governed. ?n a demo!rati! so!iet1, ,#ere
men are +ree b1 ballots to remove t#ose in po,er, an1 statement !riti!al o+
governmental a!tion is ne!essaril1 Qo+ and !on!erningQ t#e governors, and an1
statement !riti!al o+ t#e governorsP oC!ial !ondu!t is ne!essaril1 Qo+ and !on!erningQ
t#e government. ?+ t#e rule t#at libel on government #as no pla!e in our Constitution is
to #ave real meaning, t#en libel on t#e oC!ial !ondu!t o+ t#e governors li0e,ise !an
#ave no pla!e in our Constitution.
Ie must re!ognize t#at ,e are ,riting upon a !lean slate.
@n5A
As t#e Court notes,
alt#oug# t#ere #ave been @+5CCA
statements o+ t#is Court to t#e eAe!t t#at t#e Constitution does not prote!t libelous
publi!ations . . . , -n/one o+ t#e !ases sustained t#e use o+ libel la,s to impose san!tions
upon e*pression !riti!al o+ t#e oC!ial !ondu!t o+ publi! oC!ials.
Ante at 'F4. Ie s#ould be parti!ularl1 !are+ul, t#ere+ore, adeHuatel1 to prote!t t#e
liberties ,#i!# are embodied in t#e =irst and =ourteent# Amendments. ?t ma1 be urged
t#at deliberatel1 and mali!iousl1 +alse statements #ave no !on!eivable value as +ree
spee!#. "#at argument, #o,ever, is not responsive to t#e real issue presented b1 t#is
!ase, ,#i!# is ,#et#er t#at +reedom o+ spee!# ,#i!# all agree is !onstitutionall1
prote!ted !an be eAe!tivel1 sa+eguarded b1 a rule allo,ing t#e imposition o+ liabilit1
upon a ur1Ps evaluation o+ t#e spea0erPs state o+ mind. ?+ individual !itizens ma1 be #eld
liable in damages +or strong ,ords, ,#i!# a ur1 7nds +alse and mali!iousl1 motivated,
t#ere !an be little doubt t#at publi! debate and advo!a!1 ,ill be !onstrained. And i+
ne,spapers, publis#ing advertisements dealing ,it# publi! issues, t#ereb1 ris0 liabilit1,
t#ere !an also be little doubt t#at t#e abilit1 o+ minorit1 groups to se!ure publi!ation o+
t#eir vie,s on publi! aAairs and to see0 support +or t#eir !auses ,ill be greatl1
diminis#ed. Cf. #ar"ers Educational 9 Coop. ,nion %. 0.A5, Inc., 3F) L.S. ('(, (3). "#e
opinion o+ t#e Court !on!lusivel1 demonstrates t#e !#illing eAe!t o+ t#e Alabama libel
la,s on =irst Amendment +reedoms @+5C?A in t#e area o+ ra!e relations. "#e Ameri!an
Colonists ,ere not ,illing, nor s#ould ,e be, to ta0e t#e ris0 t#at Q-m/en ,#o inure and
oppress t#e people under t#eir administration -and/ provo0e t#em to !r1 out and
!omplainQ ,ill also be empo,ered to Qma0e t#at ver1 !omplaint t#e +oundation +or ne,
oppressions and prose!utions.Q "#e "rial o+ Jo#n Peter Uenger, .2 8o,ellPs St. "r. F2(,
2'.-2'' 9.23(< 9argument o+ !ounsel to t#e ur1<. "o impose liabilit1 +or !riti!al, albeit
erroneous or even mali!ious, !omments on oC!ial !ondu!t ,ould eAe!tivel1 resurre!t
Qt#e obsolete do!trine t#at t#e governed must not !riti!ize t#eir governors.Q Cf.
S&eeney %. Patterson, 2F L.S.App.D.C. '3, '5, .'4 =.'d 5(2, 5(4.
Dur national e*perien!e tea!#es t#at repressions breed #ate, and Qt#at #ate mena!es
stable government.Q 0hitney %. California, '25 L.S. 3(2, 32( 9Erandeis, J., !on!urring<.
Ie s#ould be ever mind+ul o+ t#e ,ise !ounsel o+ C#ie+ Justi!e 8ug#es:
-?/mperative is t#e need to preserve inviolate t#e !onstitutional rig#ts o+ +ree spee!#,
+ree press and +ree assembl1 in order to maintain t#e opportunit1 +or +ree politi!al
dis!ussion, to t#e end t#at government ma1 be responsive to t#e ,ill o+ t#e people and
t#at !#anges, i+ desired, ma1 be obtained b1 pea!e+ul means. "#erein lies t#e se!urit1
o+ t#e &epubli!, t#e ver1 +oundation o+ !onstitutional government.
.e Jonge %. 2regon, 'JJ L.S. 3(3, 3F(.
"#is is not to sa1 t#at t#e Constitution prote!ts de+amator1 statements dire!ted against
t#e private !ondu!t o+ a publi! oC!ial or private !itizen. =reedom o+ press and o+ spee!#
insures t#at government ,ill respond to t#e ,ill o+ t#e people, and t#at !#anges ma1 be
obtained b1 pea!e+ul means. Purel1 private de+amation #as little to do ,it# t#e politi!al
ends o+ a sel+-governing so!iet1. "#e imposition o+ liabilit1 +or private de+amation does
not @+5C8A abridge t#e +reedom o+ publi! spee!# or an1 ot#er +reedom prote!ted b1 t#e
=irst Amendment.
@n:A
"#is, o+ !ourse, !annot be said
,#ere publi! oC!ials are !on!erned, or ,#ere publi! matters are involved. . . . -D/ne
main +un!tion o+ t#e =irst Amendment is to ensure ample opportunit1 +or t#e people to
determine and resolve publi! issues. I#ere publi! matters are involved, t#e doubts
s#ould be resolved in +avor o+ +reedom o+ e*pression, rat#er t#an against it.
Douglas, "#e &ig#t o+ t#e People 9.J(4<, p. 5..
?n man1 urisdi!tions, legislators, udges and e*e!utive oC!ers are !lot#ed ,it# absolute
immunit1 against liabilit1 +or de+amator1 ,ords uttered in t#e dis!#arge o+ t#eir publi!
duties. See, e.g., (arr %. 6atteo, 3F) L.S. (F5G City of Chicago %. 1ribune Co., 3)2 ?ll., at
F.), .3J $.B. at J.. Judge >earned 8and abl1 summarized t#e poli!ies underl1ing t#e
rule:
?t does indeed go ,it#out sa1ing t#at an oC!ial ,#o is, in +a!t, guilt1 o+ using #is
po,ers to vent #is spleen upon ot#ers, or +or an1 ot#er personal motive not !onne!ted
,it# t#e publi! good, s#ould not es!ape liabilit1 +or t#e inuries #e ma1 so !auseG and, i+
it ,ere possible in pra!ti!e to !on7ne su!# !omplaints to t#e guilt1, it ,ould be
monstrous to den1 re!over1. "#e usti7!ation +or doing so is t#at it is impossible to 0no,
,#et#er t#e !laim is ,ell +ounded until t#e @+5C5A !ase #as been tried, and t#at to
submit all oC!ials, t#e inno!ent as ,ell as t#e guilt1, to t#e burden o+ a trial and to t#e
inevitable danger o+ its out!ome ,ould dampen t#e ardor o+ all but t#e most resolute, or
t#e most irresponsible, in t#e unNin!#ing dis!#arge o+ t#eir duties. Again and again, t#e
publi! interest !alls +or a!tion ,#i!# ma1 turn out to be +ounded on a mista0e, in t#e
+a!e o+ ,#i!# an oC!ial ma1 later 7nd #imsel+ #ard put to it to satis+1 a ur1 o+ #is good
+ait#. "#ere must indeed be means o+ punis#ing publi! oC!ers ,#o #ave been truant to
t#eir dutiesG but t#at is Huite anot#er matter +rom e*posing su!# as #ave been #onestl1
mista0en to suit b1 an1one ,#o #as suAered +rom t#eir errors. As is so o+ten t#e !ase,
t#e ans,er must be +ound in a balan!e bet,een t#e evils inevitable in eit#er
alternative. ?n t#is instan!e, it #as been t#oug#t in t#e end better to leave unredressed
t#e ,rongs done b1 dis#onest oC!ers t#an to sube!t t#ose ,#o tr1 to do t#eir dut1 to
t#e !onstant dread o+ retaliation. . . .
"#e de!isions #ave, indeed, al,a1s imposed as a limitation upon t#e immunit1 t#at t#e
oC!ialPs a!t must #ave been ,it#in t#e s!ope o+ #is po,ers, and it !an be argued t#at
oC!ial po,ers, sin!e t#e1 e*ist onl1 +or t#e publi! good, never !over o!!asions ,#ere
t#e publi! good is not t#eir aim, and #en!e t#at to e*er!ise a po,er dis#onestl1 is
ne!essaril1 to overstep its bounds. A momentPs reNe!tion s#o,s, #o,ever, t#at t#at
!annot be t#e meaning o+ t#e limitation ,it#out de+eating t#e ,#ole do!trine. I#at is
meant b1 sa1ing t#at t#e oC!er must be a!ting ,it#in #is po,er !annot be more t#an
t#at t#e o!!asion must be su!# as ,ould #ave usti7ed t#e a!t, i+ #e #ad been using #is
po,er +or an1 o+ t#e purposes on ,#ose a!!ount it ,as vested in #im. . . .
*regoire %. (iddle, .22 =.'d (2J, (4.. @+5C:A
?+ t#e government oC!ial s#ould be immune +rom libel a!tions, so t#at #is ardor to serve
t#e publi! ,ill not be dampened and Q+earless, vigorous, and eAe!tive administration o+
poli!ies o+ governmentQ not be in#ibited, (arr %. 6atteo, supra, at (2., t#en t#e !itizen
and t#e press s#ould li0e,ise be immune +rom libel a!tions +or t#eir !riti!ism o+ oC!ial
!ondu!t. "#eir ardor as !itizens ,ill t#us not be dampened, and t#e1 ,ill be +ree Qto
applaud or to !riti!ize t#e ,a1 publi! emplo1ees do t#eir obs, +rom t#e least to t#e
most important.Q
@n9A
?+ liabilit1 !an atta!# to politi!al !riti!ism be!ause it damages t#e
reputation o+ a publi! oC!ial as a publi! oC!ial, t#en no !riti!al !itizen !an sa+el1 utter
an1t#ing but +aint praise about t#e government or its oC!ials. "#e vigorous !riti!ism b1
press and !itizen o+ t#e !ondu!t o+ t#e government o+ t#e da1 b1 t#e oC!ials o+ t#e da1
,ill soon 1ield to silen!e i+ oC!ials in !ontrol o+ government agen!ies, instead o+
ans,ering !riti!isms, !an resort to +riendl1 uries to +orestall !riti!ism o+ t#eir oC!ial
!ondu!t. -nF/
"#e !on!lusion t#at t#e Constitution aAords t#e !itizen and t#e press an absolute
privilege +or !riti!ism o+ oC!ial !ondu!t does not leave t#e publi! oC!ial ,it#out
de+enses against unsubstantiated opinions or deliberate misstatements.
Lnder our s1stem o+ government, !ounterargument and edu!ation are t#e ,eapons
available to e*pose t#ese matters, not abridgment . . . o+ +ree spee!#. . . .
0ood %. *eorgia, 32) L.S. 32(, 34J. "#e publi! @+5C9A oC!ial !ertainl1 #as eHual, i+ not
greater, a!!ess t#an most private !itizens to media o+ !ommuni!ation. ?n an1 event,
despite t#e possibilit1 t#at some e*!esses and abuses ma1 go unremedied, ,e must
re!ognize t#at
t#e people o+ t#is nation #ave ordained, in t#e lig#t o+ #istor1, t#at, in spite o+ t#e
probabilit1 o+ e*!esses and abuses, -!ertain/ liberties are, in t#e long vie,, essential to
enlig#tened opinion and rig#t !ondu!t on t#e part o+ t#e !itizens o+ a demo!ra!1.
Cant&ell %. Connecticut, 3.) L.S. 'JF, 3.). As Mr. Justi!e Erandeis !orre!tl1 observed,
Qsunlig#t is t#e most po,er+ul o+ all disin+e!tants.Q -n2/
=or t#ese reasons, ? strongl1 believe t#at t#e Constitution a!!ords !itizens and press an
un!onditional +reedom to !riti!ize oC!ial !ondu!t. ?t ne!essaril1 +ollo,s t#at, in a !ase
su!# as t#is, ,#ere all agree t#at t#e allegedl1 de+amator1 statements related to oC!ial
!ondu!t, t#e udgments +or libel !annot !onstitutionall1 be sustained.
.. ? +ull1 agree ,it# t#e Court t#at t#e atta!0 upon t#e validit1 o+ t#e Sedition A!t o+
.2J4, . Stat. (JF, Q#as !arried t#e da1 in t#e !ourt o+ #istor1,Q ante at '2F, and t#at t#e
A!t ,ould toda1 be de!lared un!onstitutional. ?t s#ould be pointed out, #o,ever, t#at
t#e Sedition A!t pros!ribed ,ritings ,#i!# ,ere Q+alse, s!andalous and "alicious.Q
9Bmp#asis added.< =or prose!utions under t#e Sedition A!t !#arging mali!e, see,
e.g., "rial o+ Matt#e, >1on 9.2J4<, in I#arton, State "rials o+ t#e Lnited States 9.45J<,
p. 333G "rial o+ "#omas Cooper 9.4))<, in id. at F(JG "rial o+ Ant#on1 8as,ell 9.4))<,
in id. at F45G "rial o+ James "#ompson Callender 9.4))<, in id. at F44.
'. "#e reHuirement o+ proving a!tual mali!e or re!0less disregard ma1, in t#e mind o+
t#e ur1, add little to t#e reHuirement o+ proving +alsit1, a reHuirement ,#i!# t#e Court
re!ognizes not to be an adeHuate sa+eguard. "#e t#oug#t suggested b1 Mr. Justi!e
Ja!0son in ,nited States %. (allard, 3'' L.S. 24, J'-J3, is relevant #ere:
-A/s a matter o+ eit#er pra!ti!e or p#ilosop#1, ? do not see #o, ,e !an separate an
issue as to ,#at is believed +rom !onsiderations as to ,#at is believable. "#e most
!onvin!ing proo+ t#at one believes #is statements is to s#o, t#at t#e1 #ave been true in
#is e*perien!e. >i0e,ise, t#at one 0no,ingl1 +alsi7ed is best proved b1 s#o,ing t#at
,#at #e said #appened never did #appen.
See note 5, infra.
3. ?t ,as not until *itlo& %. 'e& 5or), 'F4 L.S. F(', de!ided in .J'(, t#at it ,as
intimated t#at t#e +reedom o+ spee!# guaranteed b1 t#e =irst Amendment ,as
appli!able to t#e States b1 reason o+ t#e =ourteent# Amendment. Dt#er intimations
+ollo,ed. See 0hitney %. California, '25 L.S. 3(2G #is)e %. 8ansas, '25 L.S. 34). ?n .J3.,
C#ie+ Justi!e 8ug#es, spea0ing +or t#e Court in Stro"berg %. California, '43 L.S. 3(J,
3F4, de!lared:
?t #as been determined t#at t#e !on!eption o+ libert1 under t#e due pro!ess !lause o+
t#e =ourteent# Amendment embra!es t#e rig#t o+ +ree spee!#.
"#us, ,e deal ,it# a !onstitutional prin!iple enun!iated less t#an +our de!ades ago, and
!onsider +or t#e 7rst time t#e appli!ation o+ t#at prin!iple to issues arising in libel !ases
broug#t b1 state oC!ials.
5. ?n most !ases, as in t#e !ase at bar, t#ere ,ill be little diC!ult1 in distinguis#ing
de+amator1 spee!# relating to private !ondu!t +rom t#at relating to oC!ial !ondu!t. ?
re!ognize, o+ !ourse, t#at t#ere ,ill be a gra1 area. "#e diC!ulties o+ appl1ing a publi!-
private standard are, #o,ever, !ertainl1 o+ a diAerent genre +rom t#ose attending t#e
diAerentiation bet,een a mali!ious and nonmali!ious state o+ mind. ?+ t#e !onstitutional
standard is to be s#aped b1 a !on!ept o+ mali!e, t#e spea0er ta0es t#e ris0 not onl1 t#at
t#e ur1 ,ill ina!!uratel1 determine #is state o+ mind, but also t#at t#e ur1 ,ill +ail
properl1 to appl1 t#e !onstitutional standard set b1 t#e elusive !on!ept o+
mali!e. See note ', supra.
(. M&. JLS"?CB E>ACS, !on!urring in (arr %. 6atteo, 3F) L.S. (F5, (22, observed t#at:
"#e eAe!tive +un!tioning o+ a +ree government li0e ours depends largel1 on t#e +or!e o+
an in+ormed publi! opinion. "#is !alls +or t#e ,idest possible understanding o+ t#e
Hualit1 o+ government servi!e rendered b1 all ele!tive or appointed publi! oC!ials or
emplo1ees. Su!# an in+ormed understanding depends, o+ !ourse, on t#e +reedom people
#ave to applaud or to !riti!ize t#e ,a1 publi! emplo1ees do t#eir obs, +rom t#e least to
t#e most important.
F. See notes ', 5, supra.
2. See =reund, "#e Supreme Court o+ t#e Lnited States 9.J5J<, p. F..
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ELISEO 4. SORIANO,
Petitioner,
! versus !
MA. CONSOLIDA P.
LAG7AR5IA, "n %er ca(ac"#' a&
C%a"r(er&n $ #%e M*"e and
Te,e*"&"n Re*"e/ and
C,a&&"$"ca#"n Bard, MOVIE AN5
TELEVISION REVIE3 AN5
CLASSI4ICATION BOAR5,
JESSIE L. GALAPON, ANABEL
M. 5ELA CR7D, MAN7EL M.
HERNAN5ED, JOSE L. LOPED,
CRISANTO SORIANO,
BERNABE S. YARIA, JR.,
MICHAEL M. SAN5OVAL, and
ROL5AN A. GAVINO,
Res&ondents.
G!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!G
ELISEO 4. SORIANO,
Petitioner,
! versus !
G.R. N. :>?<=;
Present:
PBN@, C.J.,
QB;"B(I;NG,
N'R?"!"'N+;'G@,
%'RP;@,
'B"+R;'!('R+;N?R,
%@R@N',
%'RP;@ (@R'7?",
+;NG',
%:;%@!N'R'R;@,
<?7'"%@, JR.,
N'%:BR',
7?@N'RD@!D? %'"+R@,
IR;@N,
P?R'7+', and
I?R"'(;N, JJ.
G.R. N. :>;>1>
MOVIE AN5 TELEVISION
REVIE3 AN5 CLASSI4ICATION
BOAR5, DOSIMO G. ALEGRE,
JACHIE A87INO-
GAVINO, NOEL R. 5EL PRA5O,
EMMAN7ELBORLADA, JOSE E.
ROMERO IV, and 4LORIMON5O
C. RO7S,"n #%e"r ca(ac"#' a&
)e)-er& $ #%e Hear"n! and
Ad0+d"ca#"n C))"##ee $ #%e
MTRCB, JESSIE L. GALAPON,
ANABEL M. 5ELA CR7D,
MAN7EL M. HERNAN5ED,
JOSE L. LOPED, CRISANTO
SORIANO, BERNABE S. YARIA,
JR., MICHAEL M. SAN5OVAL,
and ROL5AN A. GAVINO, "n #%e"r
ca(ac"#' a& c)(,a"nan#& -e$re
#%e MTRCB,
Res&ondents.
Promu#gated:
'&ri# .9, .//9
G!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!!G
5 E C I S I O N
VELASCO, JR., J.9
;n t,ese t2o &etitions 1or *ertiorari and &ro,ibition under Ru#e 65, &etitioner
?#iseo =. "oriano see3s to nu##i16 and set aside an order and a de*ision o1 t,e
(ovie and +e#evision Revie2 and %#assi1i*ation Ioard 8(+R%I9 in *onne*tion
2it, *ertain utteran*es ,e made in ,is te#evision s,o2, ;ng :ating :aan.
4ac#& $ #%e Ca&e
@n 'ugust 1/, .//0, at around 1/:// &.m., &etitioner, as ,ost o1 t,e
&rogram ;ng :ating :aan, aired on BN+< 3-, made t,e 1o##o2ing remar3s:
Lehitimong anak ng demonyoF sinungalingF
+ago ka talaga *i!hael) masahol ka pa sa putang babae o di ba. 0ung putang
babae ang gumagana lang doon yung ibaba) 3dito4 kay *i!hael ang gumagana
ang itaas) o di ba. O) masahol pa sa putang babae yan. Sabi ng lola ko masahol
pa sa putang babae yan. Sobra ang kasinungalingan ng mga demonyong ito.
415
G
G G
+2o da6s a1ter, be1ore t,e (+R%I, se&arate but a#most identi*a# a11idavit!
*om&#aints 2ere #odged b6 Jessie 7. Ga#a&on and seven ot,er &rivate res&ondents,
a## members o1 t,e ;g#esia ni %risto 8;N%9,
4.5
against &etitioner in *onne*tion 2it,
t,e above broad*ast. Res&ondent (i*,ae# (. "andova#, 2,o 1e#t dire*t#6 a##uded to
in &etitionerAs remar3, 2as t,en a minister o1 ;N% and a regu#ar ,ost o1 t,e +<
&rogram ;ng -amang :aan.
435
=ort,2it,, t,e (+R%I sent &etitioner a noti*e o1
t,e ,earing on 'ugust 16, .//0 in re#ation to t,e a##eged use o1 some *uss 2ords in
t,e 'ugust 1/, .//0 e&isode o1 ;ng :ating :aan.
405
'1ter a &re#iminar6 *on1eren*e in 2,i*, &etitioner a&&eared, t,e (+R%I,
b6 @rder o1 'ugust 16, .//0, &reventive#6 sus&ended t,e s,o2ing o1 ;ng :ating
:aan &rogram 1or ./ da6s, in a**ordan*e 2it, "e*tion 38d9 o1 Presidentia# De*ree
No. 8PD9 1986, *reating t,e (+R%I, in re#ation to "e*. 3, %,a&ter C;;; o1 t,e
.//0 ;m&#ementing Ru#es and Regu#ations 8;RR9 o1 PD 1986 and "e*. -, Ru#e <;;
o1 t,e (+R%I Ru#es o1 Pro*edure.
455
+,e same order a#so set t,e *ase 1or
&re#iminar6 investigation.
+,e 1o##o2ing da6, &etitioner soug,t re*onsideration o1 t,e &reventive
sus&ension order, &ra6ing t,at %,air&erson %onso#i$a P. 7aguardia and t2o ot,er
members o1 t,e ad)udi*ation board re*use t,emse#ves 1rom ,earing t,e *ase.
465
+2o da6s a1ter, ,o2ever, &etitioner soug,t to 2it,dra2
4-5
,is motion 1or
re*onsideration, 1o##o2ed b6 t,e 1i#ing 2it, t,is %ourt o1 a &etition 1or *ertiorari
and &ro,ibition,
485
do*3eted as G.R. No. 160-85, to nu##i16 t,e &reventive
sus&ension order t,us issued.
@n "e&tember .-, .//0, in 'dm. %ase No. /1!/0, t,e (+R%I issued a
de*ision, dis&osing as 1o##o2s:
>:?R?=@R?, in vie2 o1 a## t,e 1oregoing, a De*ision is ,ereb6
rendered, 1inding res&ondent "oriano #iab#e 1or ,is utteran*es and t,ereb6
im&osing on ,im a &ena#t6 o1 t,ree 839 mont,s sus&ension 1rom ,is &rogram,
K'ng Dating DaanL.
%o!res&ondents Jose#ito (a##ari, 7u$viminda %ru$ and BN+< %,anne# 3-
and its o2ner, PI%, are ,ereb6 eGonerated 1or #a*3 o1 eviden*e.
"@ @RD?R?D.
495
Petitioner t,en 1i#ed t,is &etition 1or *ertiorari and &ro,ibition 2it, &ra6er
1or in)un*tive re#ie1, do*3eted as G.R. No. 165636.
;n a Reso#ution dated '&ri# 0, .//5, t,e %ourt *onso#idated G.R. No. 160-85
2it, G.R. No. 165636.
;n G.R. No. 160-85, &etitioner raises t,e 1o##o2ing issues:
+:? @RD?R @= PR?<?N+;<? "B"P?N";@N PR@(B7G'+?D I
R?"P@ND?N+ 4(+R%I5 D'+?D 16 'BGB"+ .//0 'G';N"+ +:?
+?7?<;";@N PR@GR'( ;%+ :;-I%+ :;;% G G G ;" NB77 'ND
<@;D =@R I?;NG ;""B?D >;+: GR'<? 'IB"? @= D;"%R?+;@N
'(@BN+;NG +@ 7'%N @R ?C%?"" @= JBR;"D;%+;@N
8'9 I R?'"@N +:'+ +:? 4;RR5 ;" ;N<'7;D ;N"@='R '" ;+
PR@<;D?" =@R +:? ;""B'N%? @= PR?<?N+;<? "B"P?N";@N
@RD?R"H
8I9 I R?'"@N @= 7'%N @= DB? :?'R;NG ;N +:? %'"? '+ I?N%:H
8%9 =@R I?;NG <;@7'+;<? @= ?QB'7 PR@+?%+;@N BND?R +:?
7'>H
8D9 =@R I?;NG <;@7'+;<? @= =R??D@( @= R?7;G;@NH 'ND
8?9 =@R I?;NG <;@7'+;<? @= =R??D@( @= "P??%: 'ND
?CPR?"";@N.
41/5
;n G.R. No. 165636, &etitioner re#ies on t,e 1o##o2ing grounds:
"?%+;@N 38%9 @= 4PD5 1986, ;" P'+?N+7 BN%@N"+;+B+;@N'7 'ND
?N'%+?D >;+:@B+ @R ;N ?C%?"" @= JBR;"D;%+;@N G G G
%@N";D?R;NG +:'+:
;
"?%+;@N 38%9 @= 4PD5 1986, '" 'PP7;?D +@ P?+;+;@N?R, BNDB7
;N=R;NG?" @N +:? %@N"+;+B+;@N'7 GB'R'N+?? @= =R??D@( @=
R?7;G;@N, "P??%:, 'ND ?CPR?"";@N '" ;+ P'R+'N?" @= +:?
N'+BR? @= ' "BI"?QB?N+ PBN;":(?N+ %BR+';7;NG +:? "'(?H
%@N"?QB?N+7, +:? ;(P7?(?N+;NG RB7?" 'ND R?GB7'+;@N",
RB7?" @= PR@%?DBR?, 'ND @==;%;'7 '%+" @= +:? (+R%I
PBR"B'N+ +:?R?+@, ;.?. D?%;";@N D'+?D .- "?P+?(I?R .//0 'ND
@RD?R D'+?D 19 @%+@I?R .//0, 'R? 7;N?>;"? %@N"+;+B+;@N'77
;N=;R( '" 'PP7;?D ;N +:? %'"? '+ I?N%:H
;;
"?%+;@N 38%9 @= 4PD5 1986, '" 'PP7;?D +@ P?+;+;@N?R, BNDB7
;N=R;NG?" @N +:? %@N"+;+B+;@N'7 GB'R'N+?? @= DB? PR@%?""
@= 7'> 'ND ?QB'7 PR@+?%+;@N BND?R +:? 7'>H %@N"?QB?N+7,
+:? 4;RR5, RB7?" @= PR@%?DBR?, 'ND @==;%;'7 '%+" @= +:?
(+R%I PBR"B'N+ +:?R?+@, ;.?., D?%;";@N D'+?D .- "?P+?(I?R
.//0 'ND @RD?R D'+?D 19 @%+@I?R .//0, 'R? 7;N?>;"?
%@N"+;+B+;@N'77 ;N=;R( '" 'PP7;?D ;N +:? %'"? '+ I?N%:H
'ND
;;;
4PD5 1986 ;" N@+ %@(P7?+? ;N ;+"?7= 'ND D@?" N@+ PR@<;D? =@R
' "B==;%;?N+ "+'ND'RD =@R ;+" ;(P7?(?N+'+;@N +:?R?I
R?"B7+;NG ;N 'N BNDB? D?7?G'+;@N @= 7?G;"7'+;<? P@>?R I
R?'"@N +:'+ ;+ D@?" N@+ PR@<;D? =@R +:? P?N'7+;?" =@R
<;@7'+;@N" @= ;+" PR@<;";@N". %@N"?QB?N+7, +:? 4;RR5, RB7?"
@= PR@%?DBR?, 'ND @==;%;'7 '%+" @= +:? (+R%I PBR"B'N+
+:?R?+@, ;.?. D?%;";@N D'+?D .- "?P+?(I?R .//0 'ND @RD?R
D'+?D 19 @%+@I?R .//0, 'R? 7;N?>;"? %@N"+;+B+;@N'77 ;N=;R(
'" 'PP7;?D ;N +:? %'"? '+ I?N%:
4115
G.R. N. :>?<=;
>e s,a## 1irst dis&ose o1 t,e issues in G.R. No. 160-85, regarding t,e
assai#ed order o1 &reventive sus&ension, a#t,oug, its im&#ementabi#it6 ,ad a#read6
been overta3en and veritab#6 been rendered moot b6 t,e eFua##6 assai#ed
"e&tember .-, .//0 de*ision.
;t is &etitionerAs t,res,o#d &osture t,at t,e &reventive sus&ension im&osed
against ,im and t,e re#evant ;RR &rovision aut,ori$ing it are inva#id inasmu*, as
PD 1986 does not eG&ress#6 aut,ori$e t,e (+R%I to issue &reventive sus&ension.
PetitionerAs *ontention is untenab#e.
'dministrative agen*ies ,ave &o2ers and 1un*tions 2,i*, ma6 be
administrative, investigator6, regu#ator6, Fuasi!#egis#ative, or Fuasi!)udi*ia#, or a
miG o1 t,e 1ive, as ma6 be *on1erred b6 t,e %onstitution or b6 statute.
41.5
+,e6 ,ave
in 1ine on#6 su*, &o2ers or aut,orit6 as are granted or de#egated, eG&ress#6 or
im&#ied#6, b6 #a2.
4135
'nd in determining 2,et,er an agen*6 ,as *ertain &o2ers,
t,e inFuir6 s,ou#d be 1rom t,e #a2 itse#1. Iut on*e as*ertained as eGisting, t,e
aut,orit6 given s,ou#d be #ibera##6 *onstrued.
4105
' &erusa# o1 t,e (+R%IAs basi* mandate under PD 1986 revea#s t,e
&ossession b6 t,e agen*6 o1 t,e aut,orit6, a#beit im&#ied#6, to issue t,e *,a##enged
order o1 &reventive sus&ension. 'nd t,is aut,orit6 stems natura##6 1rom, and is
ne*essar6 1or t,e eGer*ise o1, its &o2er o1 regu#ation and su&ervision.
"e*. 3 o1 PD 1986 &ertinent#6 &rovides t,e 1o##o2ing:
"e*tion 3. Po2ers and =un*tions.S+,e I@'RD s,a## ,ave t,e
1o##o2ing 1un*tions, &o2ers and duties:
G G G G
*9 +o a&&rove or disa&&rove, de#ete ob)e*tionab#e &ortions 1rom andEor &ro,ibit
t,e G G G &rodu*tion, G G G eG,ibition andEor te#evision broad*ast o1 t,e motion
&i*tures, te#evision &rograms and &ub#i*it6 materia#s sub)e*t o1 t,e &re*eding
&aragra&,, 2,i*,, in t,e )udgment o1 t,e board a&ing *ontem&orar6 =i#i&ino
*u#tura# va#ues as standard, are ob)e*tionab#e 1or being immora#, inde*ent,
*ontrar6 to #a2 andEor good *ustoms, in)urious to t,e &restige o1 t,e Re&ub#i* o1
t,e P,i#i&&ines or its &eo&#e, or 2it, a dangerous tenden*6 to en*ourage t,e
*ommission o1 vio#en*e or o1 2rong or *rime su*, as but not #imited to:
G G G G
vi9 +,ose 2,i*, are #ibe#ous or de1amator6 to t,e good name and re&utation o1
an6 &erson, 2,et,er #iving or deadH
G G G G
8d9 +o &+(er*"&e, re!+,a#e, and grant, den6 or *an*e#, &ermits 1or t,e G G G
&rodu*tion, *o&6ing, distribution, sa#e, #ease, ex%"-"#"n, andKr #e,e*"&"n
-radca&# o1 a## motion &i*tures, te#evision &rograms and &ub#i*it6 materia#s, #
#%e end #%a# n &+c% ("c#+re&, (r!ra)& and )a#er"a,& as are determined b6
t,e I@'RD to be ob)e*tionab#e in a**ordan*e 2it, &aragra&, 8*9 ,ereo1 s,a## be
G G G &rodu*ed, *o&ied, re&rodu*ed, distributed, so#d, #eased, ex%"-"#ed andKr
-radca&# -' #e,e*"&"nH
G G G G
39 +o eGer*ise su*, &o2ers and 1un*tions as ma6 be ne*essar6 or in*identa# to
t,e attainment o1 t,e &ur&oses and ob)e*tives o1 t,is '*t G G G. 8?m&,asis added.9
+,e issuan*e o1 a &reventive sus&ension *omes 2e## 2it,in t,e s*o&e o1 t,e
(+R%IAs aut,orit6 and 1un*tions eG&ress#6 set 1ort, in PD 1986, more
&arti*u#ar#6 under its "e*. 38d9, as Fuoted above, 2,i*, em&o2ers t,e (+R%I to
Ksu&ervise, regu#ate, and grant, den6 or *an*e#, &ermits 1or t,e G G G eG,ibition,
andEor te#evision broad*ast o1 a## motion &i*tures, te#evision &rograms and
&ub#i*it6 materia#s, to t,e end t,at no su*, &i*tures, &rograms and materia#s as are
determined b6 t,e I@'RD to be ob)e*tionab#e in a**ordan*e 2it, &aragra&, 8*9
,ereo1 s,a## be G G G eG,ibited andEor broad*ast b6 te#evision.L
"ure#6, t,e &o2er to issue &reventive sus&ension 1orms &art o1 t,e (+R%IAs
eG&ress regu#ator6 and su&ervisor6 statutor6 mandate and its investigator6 and
dis*i&#inar6 aut,orit6 subsumed in or im&#ied 1rom su*, mandate. 'n6 ot,er
*onstrua# 2ou#d render its &o2er to regu#ate, su&ervise, or dis*i&#ine i##usor6.
Preventive sus&ension, it oug,t to be noted, is not a &ena#t6 b6 itse#1, being
mere#6 a &re#iminar6 ste& in an administrative investigation.
4155
'nd t,e &o2er to
dis*i&#ine and im&ose &ena#ties, i1 granted, *arries 2it, it t,e &o2er to investigate
administrative *om&#aints and, during su*, investigation, to &reventive#6 sus&end
t,e &erson sub)e*t o1 t,e *om&#aint.
4165
+o reiterate, &reventive sus&ension aut,orit6 o1 t,e (+R%I s&rings 1rom its
&o2ers *on1erred under PD 1986. +,e (+R%I did not, as &etitioner insinuates,
em&o2er itse#1 to im&ose &reventive sus&ension t,roug, t,e medium o1 t,e ;RR o1
PD 1986. ;t is true t,at t,e matter o1 im&osing &reventive sus&ension is embodied
on#6 in t,e ;RR o1 PD 1986. "e*. 3, %,a&ter C;;; o1 t,e ;RR &rovides:
"e*. 3. PR?<?N+;@N "B"P?N";@N @RD?R.JJ'n6 time during t,e
&enden*6 o1 t,e *ase, and in order to &revent or sto& 1urt,er vio#ations or 1or t,e
interest and 2e#1are o1 t,e &ub#i*, t,e %,airman o1 t,e Ioard ma6 issue a
Preventive "us&ension @rder mandating t,e &reventive G G G sus&ension o1 t,e
&ermitE&ermits invo#ved, andEor *#osure o1 t,e G G G te#evision net2or3, *ab#e +<
station G G G &rovided t,at t,e tem&orar6E&reventive order t,us issued s,a## ,ave a
#i1e o1 not more t,an t2ent6 8./9 da6s 1rom t,e date o1 issuan*e.
Iut t,e mere absen*e o1 a &rovision on &reventive sus&ension in PD 1986,
2it,out more, 2ou#d not 2or3 to de&rive t,e (+R%I a basi* dis*i&#inar6 too#,
su*, as &reventive sus&ension. Re*a## t,at t,e (+R%I is eG&ress#6 em&o2ered b6
statute to regu#ate and su&ervise te#evision &rograms to obviate t,e eG,ibition or
broad*ast o1, among ot,ers, inde*ent or immora# materia#s and to im&ose san*tions
1or vio#ations and, *oro##ari#6, to &revent 1urt,er vio#ations as it investigates.
%ontrar6 to &etitionerAs assertion, t,e a1oreFuoted "e*. 3 o1 t,e ;RR neit,er
amended PD 1986 nor eGtended t,e e11e*t o1 t,e #a2. Neit,er did t,e (+R%I, b6
im&osing t,e assai#ed &reventive sus&ension, outrun its aut,orit6 under t,e #a2. =ar
1rom it. +,e &reventive sus&ension 2as a*tua##6 done in 1urt,eran*e o1 t,e #a2,
im&osed &ursuant, to re&eat, to t,e (+R%IAs dut6 o1 regu#ating or su&ervising
te#evision &rograms, &ending a determination o1 2,et,er or not t,ere ,as a*tua##6
been a vio#ation. ;n t,e 1ina# ana#6sis, "e*. 3, %,a&ter C;;; o1 t,e .//0 ;RR mere#6
1orma#i$ed a &o2er 2,i*, PD 1986 besto2ed, a#beit im&#ied#6, on (+R%I.
"e*. 38*9 and 8d9 o1 PD 1986 1inds a&&#i*ation to t,e &resent *ase, su11i*ient
to aut,ori$e t,e (+R%IAs assai#ed a*tion. PetitionerAs restri*tive reading o1 PD
1986, #imiting t,e (+R%I to 1un*tions 2it,in t,e #itera# *on1ines o1 t,e #a2,
2ou#d give t,e agen*6 #itt#e #ee2a6 to o&erate, sti1#ing and rendering it inuti#e,
2,en "e*. 3839 o1 PD 1986 *#ear#6 intends to grant t,e (+R%I a 2ide room 1or
1#eGibi#it6 in its o&eration. "e*. 3839, 2e reiterate, &rovides, K+o eGer*ise su*,
&o2ers and 1un*tions as ma6 be ne*essar6 or in*identa# to t,e attainment o1 t,e
&ur&oses and ob)e*tives o1 t,is '*t G G G.L ;ndeed, t,e &o2er to im&ose &reventive
sus&ension is one o1 t,e im&#ied &o2ers o1 (+R%I. 's distinguis,ed 1rom eG&ress
&o2ers, im&#ied &o2ers are t,ose t,at *an be in1erred or areim&#i*it in t,e
2ordings or *on1erred b6 ne*essar6 or 1air im&#i*ation o1 t,e enab#ing a*t.
41-5
's
2e ,e#d in ;ngara v. ?le!toral Commission, 2,en a genera# grant o1 &o2er is
*on1erred or a dut6 en)oined, ever6 &arti*u#ar &o2er ne*essar6 1or t,e eGer*ise o1
one or t,e &er1orman*e o1 t,e ot,er is a#so *on1erred b6 ne*essar6 im&#i*ation.
4185
%#ear#6, t,e &o2er to im&ose &reventive sus&ension &ending investigation is one
o1 t,e im&#ied or in,erent &o2ers o1 (+R%I.
>e *annot agree 2it, &etitionerAs assertion t,at t,e a1oreFuoted ;RR
&rovision on &reventive sus&ension is a&&#i*ab#e on#6 to motion &i*tures and
&ub#i*it6 materia#s. +,e s*o&e o1 t,e (+R%IAs aut,orit6 eGtends be6ond motion
&i*tures. >,at t,e a*ron6m (+R%I stands 1or 2ou#d suggest as mu*,. 'nd
2,i#e t,e #a2 ma3es s&e*i1i* re1eren*e to t,e *#osure o1 a te#evision net2or3, t,e
sus&ension o1 a te#evision &rogram is a 1ar #ess &unitive measure t,at *an be
underta3en, 2it, t,e &ur&ose o1 sto&&ing 1urt,er vio#ations o1 PD 1986. 'gain, t,e
(+R%I 2ou#d regret1u##6 be rendered ine11e*tive s,ou#d it be sub)e*t to t,e
restri*tions &etitioner envisages.
Just as untenab#e is &etitionerAs argument on t,e nu##it6 o1 t,e &reventive
sus&ension order on t,e ground o1 #a*3 o1 ,earing. 's it 2ere, t,e (+R%I ,anded
out t,e assai#ed order a1ter &etitioner, in res&onse to a 2ritten noti*e, a&&eared
be1ore t,at Ioard 1or a ,earing on &rivate res&ondentsA *om&#aint. No #ess t,an
&etitioner admitted t,at t,e order 2as issued a1ter t,e ad)ournment o1 t,e ,earing,
4195
&roving t,at ,e ,ad a#read6 a&&eared be1ore t,e (+R%I. Bnder "e*. 3, %,a&ter
C;;; o1 t,e ;RR o1 PD 1986, &reventive sus&ension s,a## issue K4a5n6 time during
t,e &enden*6 o1 t,e *ase.L ;n t,is &arti*u#ar *ase, it 2as done a1ter (+R%I du#6
a&&rised &etitioner o1 ,is ,aving &ossib#6 vio#ated PD 1986
4./5
and o1
administrative *om&#aints t,at ,ad been 1i#ed against ,im 1or su*, vio#ation.
4.15
't an6 event, t,at &reventive sus&ension *an va#id#6 be meted out even
2it,out a ,earing.
4..5
Petitioner neGt 1au#ts t,e (+R%I 1or den6ing ,im ,is rig,t to t,e eFua#
&rote*tion o1 t,e #a2, arguing t,at, o2ing to t,e &reventive sus&ension order, ,e
2as unab#e to ans2er t,e *riti*isms *oming 1rom t,e ;N% ministers.
PetitionerAs &osition does not &ersuade. +,e eFua# &rote*tion *#ause demands
t,at Ka## &ersons sub)e*t to #egis#ation s,ou#d be treated a#i3e, under #i3e
*ir*umstan*es and *onditions bot, in t,e &rivi#eges *on1erred and #iabi#ities
im&osed.L
4.35
;t guards against undue 1avor and individua# &rivi#ege as 2e## as
,osti#e dis*rimination.
4.05
"ure#6, &etitioner *annot, under t,e &remises, &#a*e
,imse#1 in t,e same s,oes as t,e ;N% ministers, 2,o, 1or one, are not 1a*ing
administrative *om&#aints be1ore t,e (+R%I. =or anot,er, ,e o11ers no &roo1 t,at
t,e said ministers, in t,eir +< &rograms, use #anguage simi#ar to t,at 2,i*, ,e used
in ,is o2n, ne*essitating t,e (+R%IAs dis*i&#inar6 a*tion. ;1 t,e immediate resu#t
o1 t,e &reventive sus&ension order is t,at &etitioner remains tem&orari#6 gagged
and is unab#e to ans2er ,is *riti*s, t,is does not be*ome a de&rivation o1 t,e eFua#
&rote*tion guarantee. +,e %ourt need not be#abor t,e 1a*t t,at t,e *ir*umstan*es o1
&etitioner, as ,ost o1 ;ng :ating :aan, on one ,and, and t,e ;N% ministers, as
,osts o1 ;ng -amang :aan, on t,e ot,er, are, 2it,in t,e &urvie2 o1 t,is *ase,
sim too di11erent to even *onsider 2,et,er or not t,ere is aprima
a!ie indi*ation o1 o&&ressive ineFua#it6.
Petitioner neGt in)e*ts t,e notion o1 re#igious 1reedom, submitting t,at 2,at
,e uttered 2as re#igious s&ee*,, adding t,at 2ords #i3e Kputang babaeL 2ere said
in eGer*ise o1 ,is re#igious 1reedom.
+,e argument ,as no merit.
+,e %ourt is at a #oss to understand ,o2 &etitionerAs utteran*es in Fuestion
*an *ome 2it,in t,e &a#e o1 "e*. 5, 'rti*#e ;;; o1 t,e 198- %onstitution on re#igious
1reedom. +,e se*tion reads as 1o##o2s:
No #a2 s,a## be made res&e*ting t,e estab#is,ment o1 a re#igion, or
&ro,ibiting t,e 1ree eGer*ise t,ereo1. +,e 1ree eGer*ise and en)o6ment o1 re#igious
&ro1ession and 2ors,i&, 2it,out dis*rimination or &re1eren*e, s,a## 1orever be
a##o2ed. No re#igious test s,a## be reFuired 1or t,e eGer*ise o1 *ivi# or &o#iti*a#
rig,ts.
+,ere is not,ing in &etitionerAs statements sub)e*t o1 t,e *om&#aints
eG&ressing an6 &arti*u#ar re#igious be#ie1, not,ing 1urt,ering ,is avo2ed
evange#i*a# mission. +,e 1a*t t,at ,e *ame out 2it, ,is statements in a te#evised
bib#e eG&osition &rogram does not automati*a##6 a**ord t,em t,e *,ara*ter o1 a
re#igious dis*ourse. P#ain and sim&#e insu#ts dire*ted at anot,er &erson *annot be
e#evated to t,e status o1 re#igious s&ee*,. ?ven &etitionerAs attem&ts to &#a*e ,is
2ords in *onteGt s,o2 t,at ,e 2as moved b6 anger and t,e need to see3
retribution, not b6 an6 re#igious *onvi*tion. :is *#aim, assuming its vera*it6, t,at
some ;N% ministers distorted ,is statements res&e*ting amounts ;ng :ating
:aan o2ed to a +< station does not *onvert t,e 1ou# #anguage used in reta#iation as
re#igious s&ee*,. >e *annot a**e&t t,at &etitioner made ,is statements in de1ense
o1 ,is re&utation and re#igion, as t,e6 *onstitute no inte##igib#e de1ense or re1utation
o1 t,e a##eged #ies being s&read b6 a riva# re#igious grou&. +,e6 sim i##ustrate
t,at &etitioner ,ad des*ended to t,e #eve# o1 name!*a##ing and 1ou#!#anguage
dis*ourse. Petitioner *ou#d ,ave *,osen to *ontradi*t and dis&rove ,is detra*tors,
but o&ted 1or t,e #o2 road.
Petitioner, as a 1ina# &oint in G.R. No. 160-85, 2ou#d ,ave t,e %ourt nu##i16
t,e ./!da6 &reventive sus&ension order, being, as insisted, an un*onstitutiona#
abridgement o1 t,e 1reedom o1 s&ee*, and eG&ression and an im&ermissib#e &rior
restraint. +,e main issue tendered res&e*ting t,e adverted vio#ation and t,e
arguments ,o#ding su*, issue dovetai#s 2it, t,ose *,a##enging t,e t,ree!mont,
sus&ension im&osed under t,e assai#ed "e&tember .-, .//0 (+R%I de*ision
sub)e*t o1 revie2 under G.R. No. 165636. Iot, over#a&&ing issues and arguments
s,a## be )oint#6 addressed.
G.R. N. :>;>1>
Petitioner urges t,e stri3ing do2n o1 t,e de*ision sus&ending ,im 1rom
,osting ;ng :ating :aan 1or t,ree mont,s on t,e main ground t,at t,e de*ision
vio#ates, a&art 1rom ,is re#igious 1reedom, ,is 1reedom o1 s&ee*, and eG&ression
guaranteed under "e*. 0, 'rt. ;;; o1 t,e %onstitution, 2,i*, reads:
No #a2 s,a## be &assed abridging t,e 1reedom o1 s&ee*,, o1 eG&ression, or
o1 t,e &ress, or t,e rig,t o1 t,e &eo&#e &ea*eab#6 to assemb#e and &etition t,e
government 1or redress o1 grievan*e.
:e 2ou#d a#so ,ave t,e %ourt de*#are PD 1986, its "e*. 38*9 in &arti*u#ar,
un*onstitutiona# 1or reasons arti*u#ated in t,is &etition.
>e are not &ersuaded as s,a## be eG&#ained s,ort#6. Iut 1irst, 2e restate
*ertain genera# *on*e&ts and &rin*i&#es under#6ing t,e 1reedom o1 s&ee*, and
eG&ression.
;t is sett#ed t,at eG&ressions b6 means o1 ne2s&a&ers, radio, te#evision, and
motion &i*tures *ome 2it,in t,e broad &rote*tion o1 t,e 1ree s&ee*, and eG&ression
*#ause.
4.55
?a*, met,od t,oug,, be*ause o1 its dissimi#ar &resen*e in t,e #ives o1
&eo&#e and a**essibi#it6 to *,i#dren, tends to &resent its o2n &rob#ems in t,e area
o1 1ree s&ee*, &rote*tion, 2it, broad*ast media, o1 a## 1orms o1 *ommuni*ation,
en)o6ing a #esser degree o1 &rote*tion.
4.65
Just as sett#ed is t,e ru#e t,at restri*tions,
be it in t,e 1orm o1 &rior restraint, e.g., )udi*ia# in)un*tion against &ub#i*ation or
t,reat o1 *an*e##ation o1 #i*enseE1ran*,ise, or subseFuent #iabi#it6, 2,et,er in #ibe#
and damage suits, &rose*ution 1or sedition, or *ontem&t &ro*eedings, are anat,ema
to t,e 1reedom o1 eG&ression. Pr"r re&#ra"n# means o11i*ia# government
restri*tions on t,e &ress or ot,er 1orms o1 eG&ression in advan*e o1 a*tua#
&ub#i*ation or dissemination.
4.-5
+,e 1reedom o1 eG&ression, as 2it, t,e ot,er
1reedoms en*ased in t,e Ii## o1 Rig,ts, is, ,o2ever, not abso#ute. ;t ma6 be
regu#ated to some eGtent to serve im&ortant &ub#i* interests, some 1orms o1 s&ee*,
not being &rote*ted. 's ,as been ,e#d, t,e #imits o1 t,e 1reedom o1 eG&ression are
rea*,ed 2,en t,e eG&ression tou*,es u&on matters o1 essentia##6 &rivate *on*ern.
4.85
;n t,e o1t!Fuoted eG&ression o1 Justi*e :o#mes, t,e *onstitutiona# guarantee
Kobvious#6 2as not intended to give immunit6 1or ever6 &ossib#e use o1
#anguage.L
4.95
=rom Lu!as v. Royo *omes t,is #ine: K4+5,e 1reedom to eG&ress oneAs
sentiments and be#ie1 does not grant one t,e #i*ense to vi#i16 in &ub#i* t,e ,onor
and integrit6 o1 anot,er. 'n6 sentiments must be eG&ressed 2it,in t,e &ro&er
1orum and 2it, &ro&er regard 1or t,e rig,ts o1 ot,ers.L
43/5
;ndeed, as noted in Chaplinsky v. State o %ew 1ampshire,
4315
Kt,ere are
*ertain 2e##!de1ined and narro2#6 #imited *#asses o1 s&ee*, t,at are ,arm1u#, t,e
&revention and &unis,ment o1 2,i*, ,as never been t,oug,t to raise an6
%onstitutiona# &rob#ems.L ;n net e11e*t, some 1orms o1 s&ee*, are not &rote*ted b6
t,e %onstitution, meaning t,at restri*tions on un&rote*ted s&ee*, ma6 be de*reed
2it,out running a1ou# o1 t,e 1reedom o1 s&ee*, *#ause.
43.5
' s&ee*, 2ou#d 1a##
under t,e un&rote*ted t6&e i1 t,e utteran*es invo#ved are Kno essentia# &art o1 an6
eG&osition o1 ideas, and are o1 su*, s#ig,t so*ia# va#ue as a ste& o1 trut, t,at an6
bene1it t,at ma6 be derived 1rom t,em is *#ear#6 out2eig,ed b6 t,e so*ia# interest
in order and mora#it6.L
4335
Ieing o1 #itt#e or no va#ue, t,ere is, in dea#ing 2it, or
regu#ating t,em, no im&erative *a## 1or t,e a&&#i*ation o1 t,e *#ear and &resent
danger ru#e or t,e ba#an*ing!o1!interest test, t,e6 being essentia##6 modes o1
2eig,ing *om&eting va#ues,
4305
or, 2it, #i3e e11e*t, determining 2,i*, o1 t,e
*#as,ing interests s,ou#d be advan*ed.
Petitioner asserts t,at ,is utteran*e in Fuestion is a &rote*ted 1orm o1 s&ee*,.
+,e %ourt ru#es ot,er2ise. ;t ,as been estab#is,ed in t,is )urisdi*tion t,at
un&rote*ted s&ee*, or #o2!va#ue eG&ression re1ers to #ibe#ous statements, obs*enit6
or &ornogra&,6, 1a#se or mis#eading advertisement, insu#ting or K1ig,ting
2ordsL, i.e., t,ose 2,i*, b6 t,eir ver6 utteran*e in1#i*t in)ur6 or tend to in*ite an
immediate brea*, o1 &ea*e and eG&ression endangering nationa# se*urit6.
+,e %ourt 1inds t,at &etitionerAs statement *an be treated as obs*ene, at #east
2it, res&e*t to t,e average *,i#d. :en*e, it is, in t,at *onteGt, un&rote*ted s&ee*,.
;n /ernando v. Court o ;ppeals, t,e %ourt eG&ressed di11i*u#t6 in 1ormu#ating a
de1inition o1-&cen"#' t,at 2ou#d a& to a## *ases, but nonet,e#ess stated t,e
ensuing observations on t,e matter:
+,ere is no &er1e*t de1inition o1 Kobs*enit6L but t,e #atest 2ord is t,at
o1 *iller v. Caliornia 2,i*, estab#is,ed basi* guide#ines, to 2it: 8a9 2,et,er to
t,e average &erson, a&ing *ontem&orar6 standards 2ou#d 1ind t,e 2or3, ta3en
as a 2,o#e, a&&ea#s to t,e &rurient interestH 8b9 2,et,er t,e 2or3 de&i*ts or
des*ribes, in a &atent#6 o11ensive 2a6, seGua# *ondu*t s&e*i1i*a##6 de1ined b6 t,e
a&&#i*ab#e state #a2H and 8*9 2,et,er t,e 2or3, ta3en as a 2,o#e, #a*3s serious
#iterar6, artisti*, &o#iti*a#, or s*ienti1i* va#ue. Iut, it 2ou#d be a serious
misreading o1 *iller to *on*#ude t,at t,e trier o1 1a*ts ,as t,e unbrid#ed dis*retion
in determining 2,at is K&atent#6 o11ensive.L G G G >,at remains *#ear is t,at
obs*enit6 is an issue &ro&er 1or )udi*ia# determination and s,ou#d be treated on a
*ase to *ase basis and on t,e )udgeAs sound dis*retion.
4355
=o##o2ing t,e *onteGtua# #essons o1 t,e *ited *ase o1 *iller v. Caliornia,
4365
a &atent#6 o11ensive utteran*e 2ou#d *ome 2it,in t,e &a#e o1 t,e
term obs!enity s,ou#d it a&&ea# to t,e &rurient interest o1 an average #istener
a&ing *ontem&orar6 standards.
' *ursor6 eGamination o1 t,e utteran*es *om&#ained o1 and t,e
*ir*umstan*es o1 t,e *ase revea# t,at to an average adu#t, t,e utteran*es K+ago ka
talaga 7 7 7) masahol ka pa sa putang babae 7 7 7. 0ung putang babae ang
gumagana lang doon yung ibaba) 3dito4 kay *i!hael ang gumagana ang itaas) o
di ba.L ma6 not *onstitute obs*ene but mere#6 inde*ent utteran*es. +,e6 *an be
vie2ed as 1igures o1 s&ee*, or mere#6 a &#a6 on 2ords. ;n t,e *onteGt t,e6 2ere
used, t,e6 ma6 not a&&ea# to t,e &rurient interests o1 an adu#t. +,e &rob#em 2it,
t,e *,a##enged statements is t,at t,e6 2ere uttered in a +< &rogram t,at is rated
KGL or 1or genera# vie2ers,i&, and in a time s#ot t,at 2ou#d #i3e#6 rea*, even t,e
e6es and ears o1 *,i#dren.
>,i#e adu#ts ma6 ,ave understood t,at t,e terms t,us used 2ere not to be
ta3en #itera##6, *,i#dren *ou#d ,ard#6 be eG&e*ted to ,ave t,e same
dis*ernment. >it,out &arenta# guidan*e, t,e unbrid#ed use o1 su*, #anguage as
t,at o1 &etitioner in a te#evision broad*ast *ou#d *orru&t im&ressionab#e 6oung
minds. +,e term Kputang babaeL means Ka 1ema#e &rostitute,L a term 2,o##6
ina&&ro&riate 1or *,i#dren, 2,o *ou#d #oo3 it u& in a di*tionar6 and )ust get t,e
#itera# meaning, missing t,e *onteGt 2it,in 2,i*, it 2as used. Petitioner 1urt,er
used t,e terms, Kang gumagana lang doon yung ibaba,L ma3ing re1eren*e to t,e
1ema#e seGua# organ and ,o2 a 1ema#e &rostitute uses it in ,er trade, t,en stating
t,at "andova# 2as 2orse t,an t,at b6 using ,is mout, in a simi#ar
manner. %,i#dren *ou#d be motivated b6 *uriosit6 and as3 t,e meaning o1 2,at
&etitioner said, a#so 2it,out &#a*ing t,e &,rase in *onteGt. +,e6 ma6 be inFuisitive
as to 2,6 "andova# is di11erent 1rom a 1ema#e &rostitute and t,e reasons 1or t,e
dissimi#arit6. 'nd u&on #earning t,e meanings o1 t,e 2ords used, 6oung minds,
2it,out t,e guidan*e o1 an adu#t, ma6, 1rom t,eir end, vie2 t,is 3ind o1 inde*ent
s&ee*, as obs*ene, i1 t,e6 ta3e t,ese 2ords #itera##6 and use t,em in t,eir o2n
s&ee*, or 1orm t,eir o2n ideas on t,e matter. ;n t,is &arti*u#ar *ase, 2,ere
*,i#dren ,ad t,e o&&ortunit6 to ,ear &etitionerAs 2ords, 2,en s&ea3ing o1 t,e
average &erson in t,e test 1or obs*enit6, 2e are s&ea3ing o1 t,e average *,i#d, not
t,e average adu#t. +,e average *,i#d ma6 not ,ave t,e adu#tAs gras& o1 1igures o1
s&ee*,, and ma6 #a*3 t,e understanding t,at #anguage ma6 be *o#or1u#, and 2ords
ma6 *onve6 more t,an t,e #itera# meaning. Bndeniab#6 t,e sub)e*t s&ee*, is ver6
suggestive o1 a 1ema#e seGua# organ and its 1un*tion as su*,. ;n t,is sense, 2e 1ind
&etitionerAs utteran*es obs*ene and not entit#ed to &rote*tion under t,e umbre##a o1
1reedom o1 s&ee*,.
?ven i1 2e *on*ede t,at &etitionerAs remar3s are not obs*ene but mere#6
inde*ent s&ee*,, sti## t,e %ourt ru#es t,at &etitioner *annot avai# ,imse#1 o1 t,e
*onstitutiona# &rote*tion o1 1ree s&ee*,. "aid statements 2ere made in a medium
easi#6 a**essib#e to *,i#dren. >it, res&e*t to t,e 6oung minds, said utteran*es are
to be treated as un&rote*ted s&ee*,.
No doubt 2,at &etitioner said *onstitutes inde*ent or o11ensive
utteran*es. Iut 2,i#e a )uris&rudentia# &attern invo#ving *ertain o11ensive
utteran*es *onve6ed in di11erent mediums ,as emerged, t,is *ase is veritab#6 one
o1 1irst im&ression, it being t,e 1irst time t,at inde*ent s&ee*,
*ommuni*ated via te#evision and t,e a&&#i*ab#e norm 1or its regu#ation are, in t,is
)urisdi*tion, made t,e 1o*a# &oint. /ederal Communi!ations
Commission 8/CC9 v. 9a!ii!a /oundation,
43-5
a 19-8 'meri*an #andmar3 *ase
*ited in ?astern 2road!asting Corporation v. :ans) Jr.
4385
and Chave( v. +on(ales,
4395
is a ri*, sour*e o1 &ersuasive #essons. =oremost o1 t,ese re#ates to inde*ent
s&ee*, 2it,out &rurient a&&ea# *om&onent *oming under t,e *ategor6 o1 &rote*ted
s&ee*, de&ending on t,e *onteGt 2it,in 2,i*, it 2as made, irresistib#6 suggesting
t,at, 2it,in a &arti*u#ar *onteGt, su*, inde*ent s&ee*, ma6 va#id#6 be *ategori$ed
as un&rote*ted, ergo, sus*e&tib#e to restri*tion.
;n /CC, seven o1 2,at 2ere *onsidered K1i#t,6L 2ords
40/5
ear#ier re*orded in
a mono#ogue b6 a satiri* ,umorist #ater aired in t,e a1ternoon over a radio station
o2ned b6 Pa*i1i*a =oundation. B&on t,e *om&#aint o1 a man 2,o ,eard t,e &re!
re*orded mono#ogue 2,i#e driving 2it, ,is son, =%% de*#ared t,e #anguage used
as K(a#en#,' $$en&"*eL and K"ndecen#L under a &ro,ibiting #a2, t,oug, not
ne*essari#6 obs*ene. =%% added, ,o2ever, t,at its de*#arator6 order 2as issued in a
Ks&e*ia# 1a*tua# *onteGt,L re1erring, in gist, to an a1ternoon radio broad*ast 2,en
*,i#dren 2ere undoubted#6 in t,e audien*e. '*ting on t,e Fuestion o1 2,et,er t,e
=%% *ou#d regu#ate t,e sub)e*t utteran*e, t,e B" "u&reme %ourt ru#ed in t,e
a11irmative, o2ing to t2o s&e*ia# 1eatures o1 t,e broad*ast medium, to 2it: 819
radio is a &ervasive medium and 8.9 broad*asting is uniFue#6 a**essib#e to
*,i#dren. +,e B" %ourt, ,o2ever, ,astened to add t,at t,e mono#ogue 2ou#d be
&rote*ted s&ee*, in ot,er *onteGts, a#beit it did not eG&ound and identi16 a
*om&e##ing state interest in &utting =%%As *ontent!based regu#ator6 a*tion under
s*rutin6.
+,e %ourt in Chave(
4015
e#u*idated on t,e distin*tion bet2een regu#ation or
restri*tion o1 &rote*ted s&ee*, t,at is *ontent!based and t,at 2,i*, is *ontent!
neutra#. ' *ontent!based restraint is aimed at t,e *ontents or idea o1 t,e eG&ression,
2,ereas a *ontent!neutra# restraint intends to regu#ate t,e time, &#a*e, and manner
o1 t,e eG&ression under 2e##!de1ined standards tai#ored to serve a *om&e##ing state
interest, 2it,out restraint on t,e message o1 t,e eG&ression. %ourts sub)e*t *ontent!
based restraint to stri*t s*rutin6.
>it, t,e vie2 2e ta3e o1 t,e *ase, t,e sus&ension (+R%I im&osed under
t,e &remises 2as, in one &ers&e*tive, &ermissib#e restri*tion. >e ma3e t,is
dis&osition against t,e ba*3dro& o1 t,e 1o##o2ing inter&#a6ing 1a*tors: /irst, t,e
inde*ent s&ee*, 2as made via te#evision, a &ervasive medium t,at, to borro2
1rom +on(ales v. Galaw Gatigbak,
40.5
easi#6 Krea*,es ever6 ,ome 2,ere t,ere is a
set 4and 2,ere5 4*5,i#dren 2i## #i3e#6 be among t,e avid vie2ers o1 t,e &rograms
t,erein s,o2nLH se!ond, t,e broad*ast 2as aired at t,e time o1 t,e da6 2,en t,ere
2as a reasonab#e ris3 t,at *,i#dren mig,t be in t,e audien*eH and third, &etitioner
uttered ,is s&ee*, on a KGL or K1or genera# &atronageL rated &rogram. Bnder "e*.
.8'9 o1 %,a&ter ;< o1 t,e ;RR o1 t,e (+R%I, a s,o2 1or genera# &atronage is
K4s5uitab#e 1or a## ages,L meaning t,at t,e Kmateria# 1or te#evision G G G in t,e
)udgment o1 t,e I@'RD, does not *ontain an6t,ing unsuitab#e 1or *,i#dren and
minors, and ma6 be vie2ed 2it,out adu#t guidan*e or su&ervision.L +,e 2ords
&etitioner used 2ere, b6 an6 *ivi#i$ed norm, *#ear#6 not suitab#e 1or
*,i#dren. >,ere a #anguage is *ategori$ed as inde*ent, as in &etitionerAs utteran*es
on a genera#!&atronage rated +< &rogram, it ma6 be readi#6 &ros*ribed as
un&rote*ted s&ee*,.
' vie2 ,as been advan*ed t,at un&rote*ted s&ee*, re1ers on#6 to
&ornogra&,6,
4035
1a#se or mis#eading advertisement,
4005
advo*a*6 o1 imminent #a2#ess
a*tion, and eG&ression endangering nationa# se*urit6. Iut t,is #ist is not, as some
members o1 t,e %ourt 2ou#d submit, eG*#usive or *arved in stone. >it,out going
into s&e*i1i*s, it ma6 be stated 2it,out 1ear o1 *ontradi*tion t,atB" de*isiona# #a2
goes be6ond t,e a1oresaid genera# eG*e&tions. 's t,e %ourt ,as been im&e##ed to
re*ogni$e eG*e&tions to t,e ru#e against *ensors,i& in t,e &ast, t,is &arti*u#ar *ase
*onstitutes 6et anot,er eG*e&tion, anot,er instan*e o1 un&rote*ted s&ee*,, *reated
b6 t,e ne*essit6 o1 &rote*ting t,e 2e#1are o1 our *,i#dren. 's un&rote*ted s&ee*,,
&etitionerAs utteran*es *an be sub)e*ted to restraint or regu#ation.
Des&ite t,e sett#ed ru#ing in /CC 2,i*, ,as remained undisturbed sin*e
19-8, &etitioner asserts t,at ,is utteran*es must &resent a *#ear and &resent danger
o1 bringing about a substantive evi# t,e "tate ,as a rig,t and dut6 to &revent and
su*, danger must be grave and imminent.
4055
PetitionerAs invo*ation o1 t,e *#ear and &resent danger do*trine, arguab#6 t,e
most &ermissive o1 s&ee*, tests, 2ou#d not avai# ,im an6 re#ie1, 1or t,e a&&#i*ation
o1 said test is un*a##ed 1or under t,e &remises. +,e do*trine, 1irst 1ormu#ated b6
Justi*e :o#mes, a**ords &rote*tion 1or utteran*es so t,at t,e &rinted or s&o3en
2ords ma6 not be sub)e*t to &rior restraint or subseFuent &unis,ment un#ess its
eG&ression *reates a *#ear and &resent danger o1 bringing about a substantia# evi#
2,i*, t,e government ,as t,e &o2er to &ro,ibit.
4065
Bnder t,e do*trine, 1reedom o1
s&ee*, and o1 &ress is sus*e&tib#e o1 restri*tion 2,en and on#6 2,en ne*essar6 to
&revent grave and immediate danger to interests 2,i*, t,e government ma6
#a21u##6 &rote*t. 's it 2ere, said do*trine evo#ved in t,e *onteGt o1 &rose*utions
1or rebe##ion and ot,er *rimes invo#ving t,e overt,ro2 o1 government.
40-5
;t 2as
origina##6 designed to determine t,e #atitude 2,i*, s,ou#d be given to s&ee*, t,at
es&ouses anti!government a*tion, or to ,ave serious and substantia# de#eterious
*onseFuen*es on t,e se*urit6 and &ub#i* order o1 t,e *ommunit6.
4085
+,e *#ear and
&resent danger ru#e ,as been a&&#ied to t,is )urisdi*tion.
4095
's a standard o1
#imitation on 1ree s&ee*, and &ress, ,o2ever, t,e *#ear and &resent danger test is
not a magi* in*antation t,at 2i&es out a## &rob#ems and does a2a6 2it, ana#6sis
and )udgment in t,e testing o1 t,e #egitima*6 o1 *#aims to 1ree s&ee*, and 2,i*,
*om&e#s a *ourt to re#ease a de1endant 1rom #iabi#it6 t,e moment t,e do*trine is
invo3ed, absent &roo1 o1 imminent *atastro&,i* disaster.
45/5
's 2e observed
in ?astern 2road!asting Corporation, t,e *#ear and &resent danger test Kdoes not
#end itse#1 to a sim&#isti* and a## embra*ing inter&retation a&&#i*ab#e to a##
utteran*es in a## 1orums.L
4515
+o be sure, t,e *#ear and &resent danger do*trine is not t,e on#6 test 2,i*,
,as been a&&#ied b6 t,e *ourts. Genera##6, said do*trine is a&&#ied to *ases
invo#ving t,e overt,ro2 o1 t,e government and even ot,er evi#s 2,i*, do not
*#ear#6 undermine nationa# se*urit6. "in*e not a## evi#s *an be measured in terms o1
K&roGimit6 and degreeL t,e %ourt, ,o2ever, in severa# *asesS;yer 9rodu!tions v.
Capulong
45.5
and +on(ales v. CO*?L?C,
4535
a&&#ied t,e ba#an*ing o1 interests
test. =ormer %,ie1 Justi*e =red Rui$ %astro, in +on(ales v. CO*?L?C, e#u*idated
in ,is "e&arate @&inion t,at K2,ere t,e #egis#ation under *onstitutiona# atta*3
inter1eres 2it, t,e 1reedom o1 s&ee*, and assemb#6 in a more genera#i$ed 2a6 and
2,ere t,e e11e*t o1 t,e s&ee*, and assemb#6 in terms o1 t,e &robabi#it6 o1
rea#i$ation o1 a s&e*i1i* danger is not sus*e&tib#e even o1 im&ressionisti*
*a#*u#ation,L
4505
t,en t,e Kba#an*ing o1 interestsL test *an be a&&#ied.
+,e %ourt eG&#ained a#so in +on(ales v. CO*?L?C t,e Kba#an*ing o1
interestsL test:
>,en &arti*u#ar *ondu*t is regu#ated in t,e interest o1 &ub#i* order, and
t,e regu#ation resu#ts in an indire*t, *onditiona#, &artia# abridgment o1 s&ee*,,
t,e dut6 o1 t,e *ourts is to determine 2,i*, o1 t,e t2o *on1#i*ting interests
demands t,e greater &rote*tion under t,e &arti*u#ar *ir*umstan*es &resented. G
G G >e must, t,ere1ore, underta3e t,e Kde#i*ate and di11i*u#t tas3 G G G to
2eig, t,e *ir*umstan*es and to a&&raise t,e substantia#it6 o1 t,e reasons
advan*ed in su&&ort o1 t,e regu#ation o1 t,e 1ree en)o6ment o1 rig,ts G G G.
;n enun*iating standard &remised on a )udi*ia# ba#an*ing o1 t,e
*on1#i*ting so*ia# va#ues and individua# interests *om&eting 1or as*endan*6 in
#egis#ation 2,i*, restri*ts eG&ression, t,e *ourt in :ouds #aid t,e basis 1or
2,at ,as been *a##ed t,e Kba#an*ing!o1!interestsL test 2,i*, ,as 1ound
a&&#i*ation in more re*ent de*isions o1 t,e B.". "u&reme %ourt. Irie1#6
stated, t,e Kba#an*ingL test reFuires a *ourt to ta3e *ons*ious and detai#ed
*onsideration o1 t,e inter&#a6 o1 interests observab#e in a given situation or
t6&e o1 situation.
G G G G
'#t,oug, t,e urgen*6 o1 t,e &ub#i* interest soug,t to be se*ured b6
%ongressiona# &o2er restri*ting t,e individua#As 1reedom, and t,e so*ia#
im&ortan*e and va#ue o1 t,e 1reedom so restri*ted, Kare to be )udged in t,e
*on*rete, not on t,e basis o1 abstra*tions,L a 2ide range o1 1a*tors are
ne*essari#6 re#evant in as*ertaining t,e &oint or #ine o1 eFui#ibrium. 'mong
t,ese are 8a9 t,e so*ia# va#ue and im&ortan*e o1 t,e s&e*i1i* as&e*t o1 t,e
&arti*u#ar 1reedom restri*ted b6 t,e #egis#ationH 8b9 t,e s&e*i1i* t,rust o1 t,e
restri*tion, i.e., 2,et,er t,e restri*tion is dire*t or indire*t, 2,et,er or not t,e
&ersons a11e*ted are 1e2H 8*9 t,e va#ue and im&ortan*e o1 t,e &ub#i* interest
soug,t to be se*ured b6 t,e #egis#ationJJt,e re1eren*e ,ere is to t,e nature and
gravit6 o1 t,e evi# 2,i*, %ongress see3s to &reventH 8d9 2,et,er t,e s&e*i1i*
restri*tion de*reed b6 %ongress is reasonab#6 a&&ro&riate and ne*essar6 1or
t,e &rote*tion o1 su*, &ub#i* interestH and 8e9 2,et,er t,e ne*essar6
sa1eguarding o1 t,e &ub#i* interest invo#ved ma6 be a*,ieved b6 some ot,er
measure #ess restri*tive o1 t,e &rote*ted 1reedom.
4555
+,is ba#an*ing o1 interest test, to borro2 1rom Pro1essor Nau&er,
4565
rests on
t,e t,eor6 t,at it is t,e *ourtAs 1un*tion in a *ase be1ore it 2,en it 1inds &ub#i*
interests served b6 #egis#ation, on t,e one ,and, and t,e 1ree eG&ression *#ause
a11e*ted b6 it, on t,e ot,er, to ba#an*e one against t,e ot,er and arrive at a
)udgment 2,ere t,e greater 2eig,t s,a## be &#a*ed. ;1, on ba#an*e, it a&&ears t,at
t,e &ub#i* interest served b6 restri*tive #egis#ation is o1 su*, nature t,at it
out2eig,s t,e abridgment o1 1reedom, t,en t,e *ourt 2i## 1ind t,e #egis#ation
va#id. ;n s,ort, t,e ba#an*e!o1!interests t,eor6 rests on t,e basis t,at *onstitutiona#
1reedoms are not abso#ute, not even t,ose stated in t,e 1ree s&ee*, and eG&ression
*#ause, and t,at t,e6 ma6 be abridged to some eGtent to serve a&&ro&riate and
im&ortant interests.
45-5
+o t,e mind o1 t,e %ourt, t,e ba#an*ing o1 interest do*trine
is t,e more a&&ro&riate test to 1o##o2.
;n t,e *ase at bar, &etitioner used inde*ent and obs*ene #anguage and a t,ree
839!mont, sus&ension 2as s#a&&ed on ,im 1or brea*, o1 (+R%I ru#es. ;n t,is
setting, t,e assertion b6 &etitioner o1 ,is en)o6ment o1 ,is 1reedom o1 s&ee*, is
ranged against t,e dut6 o1 t,e government to &rote*t and &romote t,e deve#o&ment
and 2e#1are o1 t,e 6out,.
'1ter a *are1u# eGamination o1 t,e 1a*tua# mi#ieu and t,e arguments raised b6
&etitioner in su&&ort o1 ,is *#aim to 1ree s&ee*,, t,e %ourt ru#es t,at t,e
governmentAs interest to &rote*t and &romote t,e interests and 2e#1are o1 t,e
*,i#dren adeFuate#6 buttresses t,e reasonab#e *urtai#ment and va#id restraint on
&etitionerAs &ra6er to *ontinue as &rogram ,ost o1 ;ng :ating :aan during t,e
sus&ension &eriod.
No doubt, one o1 t,e 1undamenta# and most vita# rig,ts granted to *iti$ens o1
a "tate is t,e 1reedom o1 s&ee*, or eG&ression, 1or 2it,out t,e en)o6ment o1 su*,
rig,t, a 1ree, stab#e, e11e*tive, and &rogressive demo*rati* state 2ou#d be di11i*u#t
to attain. 'rra6ed against t,e 1reedom o1 s&ee*, is t,e rig,t o1 t,e 6out, to t,eir
mora#, s&iritua#, inte##e*tua#, and so*ia# being 2,i*, t,e "tate is *onstitutiona##6
tas3ed to &romote and &rote*t. (oreover, t,e "tate is a#so mandated to re*ogni$e
and su&&ort t,e vita# ro#e o1 t,e 6out, in nation bui#ding as #aid do2n in "e*. 13,
'rt. ;; o1 t,e 198- %onstitution.
+,e %onstitution ,as, t,ere1ore, im&osed t,e sa*red ob#igation and
res&onsibi#it6 on t,e "tate to &rovide &rote*tion to t,e 6out, against i##ega# or
im&ro&er a*tivities 2,i*, ma6 &re)udi*e t,eir genera# 2e##!being. +,e 'rti*#e on
6out,, a&&roved on se*ond reading b6 t,e %onstitutiona# %ommission, eG&#ained
t,at t,e "tate s,a## KeGtend so*ia# &rote*tion to minors against a## 1orms o1 neg#e*t,
*rue#t6, eG&#oitation, "))ra,"#', and &ra*ti*es 2,i*, ma6 1oster ra*ia#, re#igious
or ot,er 1orms o1 dis*rimination.L
4585
;ndis&utab#6, t,e "tate ,as a *om&e##ing interest in eGtending so*ia#
&rote*tion to minors against a## 1orms o1 neg#e*t, eG&#oitation, and immora#it6
2,i*, ma6 &o##ute inno*ent minds. ;t ,as a *om&e##ing interest in ,e#&ing &arents,
t,roug, regu#ator6 me*,anisms, &rote*t t,eir *,i#drenAs minds 1rom eG&osure to
undesirab#e materia#s and *orru&ting eG&erien*es. +,e %onstitution, no #ess, in 1a*t
en)oins t,e "tate, as ear#ier indi*ated, to &romote and &rote*t t,e &,6si*a#, mora#,
s&iritua#, inte##e*tua#, and so*ia# 2e##!being o1 t,e 6out, to better &re&are t,em
1u#1i## t,eir ro#e in t,e 1ie#d o1 nation!bui#ding.
4595
;n t,e same 2a6, t,e "tate is
mandated to su&&ort &arents in t,e rearing o1 t,e 6out, 1or *ivi* e11i*ien*6 and t,e
deve#o&ment o1 mora# *,ara*ter.
46/5
PetitionerAs o11ensive and obs*ene #anguage uttered in a te#evision broad*ast,
2it,out doubt, 2as easi#6 a**essib#e to t,e *,i#dren. :is statements *ou#d ,ave
eG&osed *,i#dren to a #anguage t,at is una**e&tab#e in ever6da6 use. 's su*,, t,e
2e#1are o1 *,i#dren and t,e "tateAs mandate to &rote*t and *are 1or t,em, as parens
patriae,
4615
*onstitute a substantia# and *om&e##ing government interest in
regu#ating &etitionerAs utteran*es in +< broad*ast as &rovided in PD 1986.
/CC eG&#ains t,e dut6 o1 t,e government to a*t as parens patriae to &rote*t
t,e *,i#dren 2,o, be*ause o1 age or interest *a&a*it6, are sus*e&tib#e o1 being
*orru&ted or &re)udi*ed b6 o11ensive #anguage, t,us:
4I5road*asting is uniFue#6 a**essib#e to *,i#dren, even t,ose too 6oung to
read. '#t,oug, %o,enAs 2ritten message, 4K=u*3 t,e Dra1tL5, mig,t ,ave been
in*om&re,ensib#e to a 1irst grader, Pa*i1i*aAs broad*ast *ou#d ,ave en#arged a
*,i#dAs vo*abu#ar6 in an instant. @t,er 1orms o1 o11ensive eG&ression ma6 be
2it,,e#d 1rom t,e 6oung 2it,out restri*ting t,e eG&ression at its
sour*e. Ioo3stores and motion &i*ture t,eaters, 1or eGam&#e, ma6 be &ro,ibited
1rom ma3ing inde*ent materia# avai#ab#e to *,i#dren. >e ,e#d in +insberg v. %ew
0ork t,at t,e governmentAs interest in t,e K2e##!being o1 its 6out,L and in
su&&orting K&arentsA *#aim to aut,orit6 in t,eir o2n ,ouse,o#dL )usti1ied t,e
regu#ation o1 ot,er2ise &rote*ted eG&ression. +,e ease 2it, 2,i*, *,i#dren ma6
obtain a**ess to broad*ast materia#, *ou&#ed 2it, t,e *on*erns re*ogni$ed
in +insberg, am )usti16 s&e*ia# treatment o1 inde*ent broad*asting.
(oreover, +on(ales v. Galaw Gatigbak #i3e2ise stressed t,e dut6 o1 t,e
"tate to attend to t,e 2e#1are o1 t,e 6oung:
G G G ;t is t,e *onsensus o1 t,is %ourt t,at 2,ere te#evision is *on*erned, a
#ess #ibera# a&&roa*, *a##s 1or observan*e. +,is is so be*ause un#i3e motion
&i*tures 2,ere t,e &atrons ,ave to &a6 t,eir 2a6, te#evision rea*,es ever6 ,ome
2,ere t,ere is a set. %,i#dren t,en 2i## #i3e#6 2i## be among t,e avid vie2ers o1
t,e &rograms t,erein s,o2n. 's 2as observed b6 %ir*uit %ourt o1 '&&ea#s Judge
Jerome =ran3, it is ,ard#6 t,e *on*ern o1 t,e #a2 to dea# 2it, t,e seGua# 1antasies
o1 t,e adu#t &o&u#ation. ;t *annot be denied t,oug, t,at t,e "tate as parens
patriae is *a##ed u&on to mani1est an attitude o1 *aring 1or t,e 2e#1are o1 t,e
6oung.
46.5
+,e *om&e##ing need to &rote*t t,e 6oung im&e#s us to sustain t,e regu#ator6
a*tion (+R%I too3 in t,e narro2 *on1ines o1 t,e *ase. +o reiterate, /CC )usti1ied
t,e restraint on t,e +< broad*ast grounded on t,e 1o##o2ing *onsiderations: 819 t,e
use o1 te#evision 2it, its uniFue a**essibi#it6 to *,i#dren, as a medium o1 broad*ast
o1 a &atent#6 o11ensive s&ee*,H 8.9 t,e time o1 broad*astH and 839 t,e KGL rating o1
t,e ;ng :ating :aan &rogram. 'nd in agreeing 2it, (+R%I, t,e *ourt ta3es
sto*3 o1 and *ites 2it, a&&rova# t,e 1o##o2ing eG*er&ts 1rom /CC:
;t is a&&ro&riate, in *on*#usion, to em&,asi$e t,e narro2ness o1 our
,o#ding. +,is *ase does not invo#ve a t2o!2a6 radio *onversation bet2een a *ab
driver and a dis&at*,er, or a te#e*ast o1 an ?#i$abet,an *omed6. >e ,ave not
de*ided t,at an o**asiona# eG&#etive in eit,er setting 2ou#d )usti16 an6 san*tion. G
G G +,e 4==%As5 de*ision rested entire#6 on a nuisan*e rationa#e under 2,i*,
*onteGt is a## im&ortant. +,e *on*e&t reFuires *onsideration o1 a ,ost o1 variab#es.
+,e time o1 da6 2as em&,asi$ed b6 t,e 4==%5. +,e *ontent o1 t,e &rogram in
2,i*, t,e #anguage is used 2i## a11e*t t,e *om&osition o1 t,e audien*e G G G. 's
(r. Justi*e "ut,er#and 2rote a Tnuisan*e ma6 be mere#6 a rig,t t,ing in t,e 2rong
&#a*e, #i3e a &ig in t,e &ar#or instead o1 t,e barn6ard.A >e sim ,o#d t,at 2,en
t,e 4=%%5 1inds t,at a &ig ,as entered t,e &ar#or, t,e eGer*ise o1 its regu#ator6
&o2er does not de&end on &roo1 t,at t,e &ig is obs*ene. 8%itation omitted.9
+,ere *an be no Fuibb#ing t,at t,e remar3s in Fuestion &etitioner uttered on
&rime!time te#evision are b#atant#6 inde*ent i1 not outrig,t obs*ene. ;t is t,e 3ind
o1 s&ee*, t,at PD 1986 &ros*ribes ne*essitating t,e eGer*ise b6 (+R%I o1
statutor6 dis*i&#inar6 &o2ers. ;t is t,e 3ind o1 s&ee*, t,at t,e "tate ,as t,e
in,erent &rerogative, na6 dut6, to regu#ate and &revent s,ou#d su*, a*tion served
and 1urt,er *om&e##ing state interests. @ne 2,o utters inde*ent, insu#ting, or
o11ensive 2ords on te#evision 2,en unsus&e*ting *,i#dren are in t,e audien*e is, in
t,e gra&,i* #anguage o1 /CC, a K&ig in t,e &ar#or.L Pub#i* interest 2ou#d be served
i1 t,e K&igL is reasonab#6 restrained or even removed 1rom t,e K&ar#or.L
?rgo, &etitionerAs o11ensive and inde*ent #anguage *an be sub)e*ted to &rior
restraint.
Petitioner t,eori$es t,at t,e t,ree 839!mont, sus&ension is eit,er &rior
restraint or subseFuent &unis,ment t,at, ,o2ever, in*#udes &rior restraint, a#beit
indire*t#6.
'1ter a revie2 o1 t,e 1a*ts, t,e %ourt 1inds t,at 2,at (+R%I im&osed on
&etitioner is an administrative san*tion or subseFuent &unis,ment 1or ,is o11ensive
and obs*ene #anguage in ;ng :ating :aan.
+o *#ari16, statutes im&osing &rior restraints on s&ee*, are genera##6 i##ega#
and &resumed un*onstitutiona# brea*,es o1 t,e 1reedom o1 s&ee*,. +,e eG*e&tions
to &rior restraint are movies, te#evision, and radio broad*ast *ensors,i& in vie2 o1
its a**ess to numerous &eo&#e, in*#uding t,e 6oung 2,o must be insu#ated 1rom t,e
&re)udi*ia# e11e*ts o1 un&rote*ted s&ee*,. PD 1986 2as &assed *reating t,e Ioard
o1 Revie2 1or (otion Pi*tures and +e#evision 8no2 (+R%I9 and 2,i*, reFuires
&rior &ermit or #i*ense be1ore s,o2ing a motion &i*ture or broad*asting a +<
&rogram. +,e Ioard *an *#assi16 movies and te#evision &rograms and *an *an*e#
&ermits 1or eG,ibition o1 1i#ms or te#evision broad*ast.
+,e &o2er o1 (+R%I to regu#ate and even im&ose some &rior restraint on
radio and te#evision s,o2s, even re#igious &rograms, 2as u&,e#d in Iglesia %i
Cristo v. Court o ;ppeals. "&ea3ing t,roug, %,ie1 Justi*e Re6nato ". Puno, t,e
%ourt 2rote:
>e t,us re)e*t &etitionerAs &ostu#ate t,at its re#igious &rogram is per
se be6ond revie2 b6 t,e res&ondent Ioard. ;ts &ub#i* broad*ast on +< o1 its
re#igious &rogram brings it out o1 t,e bosom o1 interna# be#ie1. +e#evision is a
medium t,at rea*,es even t,e e6es and ears o1 *,i#dren. +,e %ourt iterates t,e
ru#e t,at t,e eGer*ise o1 re#igious 1reedom *an be regu#ated b6 t,e "tate 2,en it
2i## bring about t,e *#ear and &resent danger o1 some substantive evi# 2,i*, t,e
"tate is dut6 bound to &revent, i.e., serious detriment to t,e more overriding
interest o1 &ub#i* ,ea#t,, &ub#i* mora#s, or &ub#i* 2e#1are. G G G
G G G G
>,i#e t,e t,esis ,as a #ot to *ommend itse#1, 2e are not read6 to ,o#d t,at
4PD 19865 is un*onstitutiona# 1or %ongress to grant an administrative bod6 Fuasi!
)udi*ia# &o2er to &revie2 and *#assi16 +< &rograms and en1or*e its de*ision
sub)e*t to revie2 b6 our *ourts. 's 1ar ba*3 as 19.1, 2e u&,e#d t,is setu&
in Sotto vs. Rui(, vi$:
K+,e use o1 t,e mai#s b6 &rivate &ersons is in t,e nature o1 a
&rivi#ege 2,i*, *an be regu#ated in order to avoid its abuse. Persons
&ossess no abso#ute rig,t to &ut into t,e mai# an6t,ing t,e6 &#ease,
regard#ess o1 its *,ara*ter.L
4635
Iernas adds:
Bnder t,e de*ree a movie *#assi1i*ation board is made t,e arbiter o1 2,at
movies and te#evision &rograms or &arts o1 eit,er are 1it 1or &ub#i*
*onsum&tion. ;t de*ides 2,at movies are Kimmora#, inde*ent, *ontrar6 to #a2
andEor good *ustoms, in)urious to t,e &restige o1 t,e Re&ub#i* o1 t,eP,i#i&&ines or
its &eo&#e,L and 2,at Ktend to in*ite subversion, insurre*tion, rebe##ion or
sedition,L or Ktend to undermine t,e 1ait, and *on1iden*e o1 t,e &eo&#e in t,eir
government andEor du#6 *onstituted aut,orities,L et*. (oreover, its de*isions are
eGe*utor6 un#ess sto&&ed b6 a *ourt.
4605
(oreover, in *-RC2 v. ;2S$C2% 2road!asting Corporation,
4655
it 2as ,e#d
t,at t,e &o2er o1 revie2 and &rior a&&rova# o1 (+R%I eGtends to a## te#evision
&rograms and is va#id des&ite t,e 1reedom o1 s&ee*, guaranteed b6 t,e
%onstitution. +,us, a## broad*ast net2or3s are regu#ated b6 t,e (+R%I sin*e t,e6
are reFuired to get a &ermit be1ore t,e6 air t,eir te#evision &rograms. %onseFuent#6,
t,eir rig,t to en)o6 t,eir 1reedom o1 s&ee*, is sub)e*t to t,at reFuirement. 's
#u*id#6 eG&#ained b6 Justi*e Dante @. +inga, government regu#ations t,roug, t,e
(+R%I be*ame Ka ne*essar6 evi#L 2it, t,e government ta3ing t,e ro#e o1
assigning band2idt, to individua# broad*asters. +,e stations eG&#i*it#6 agreed to
t,is regu#ator6 s*,emeH ot,er2ise, *,aos 2ou#d resu#t in t,e te#evision broad*ast
industr6 as *om&eting broad*asters 2i## inter1ere or *o!o&t ea*, ot,erAs signa#s. ;n
t,is s*,eme, station o2ners and broad*asters in e11e*t 2aived t,eir rig,t to t,e 1u##
en)o6ment o1 t,eir rig,t to 1reedom o1 s&ee*, in radio and te#evision &rograms and
im&#ied#6 agreed t,at said rig,t ma6 be sub)e*t to &rior restraintSdenia# o1 &ermit
or subseFuent &unis,ment, #i3e sus&ension or *an*e##ation o1 &ermit, among
ot,ers.
+,e t,ree 839 mont,s sus&ension in t,is *ase is not a &rior restraint on t,e
rig,t o1 &etitioner to *ontinue 2it, t,e broad*ast o1;ng :ating :aan as a &ermit
2as a#read6 issued to ,im b6 (+R%I 1or su*, broad*ast. Rat,er, t,e sus&ension
is in t,e 1orm o1 &ermissib#e administrative san*tion or subseFuent &unis,ment 1or
t,e o11ensive and obs*ene remar3s ,e uttered on t,e evening o1 'ugust 1/, .//0 in
,is te#evision &rogram, ;ng :ating :aan. ;t is a san*tion t,at t,e (+R%I ma6
va#id#6 im&ose under its *,arter 2it,out running a1ou# o1 t,e 1ree s&ee*,
*#ause. 'nd t,e im&osition is se&arate and distin*t 1rom t,e *rimina# a*tion t,e
Ioard ma6 ta3e &ursuant to "e*. 38i9 o1 PD 1986 and t,e remedies t,at ma6 be
avai#ed o1 b6 t,e aggrieved &rivate &art6 under t,e &rovisions on #ibe# or tort, i1
a&&#i*ab#e. 's /CC tea*,es, t,e im&osition o1 san*tions on broad*asters 2,o
indu#ge in &ro1ane or inde*ent broad*asting does not *onstitute 1orbidden
*ensors,i&. 7est it be over#oo3ed, t,e san*tion im&osed is not per se 1or
&etitionerAs eGer*ise o1 ,is 1reedom o1 s&ee*, via te#evision, but 1or t,e inde*ent
*ontents o1 ,is utteran*es in a KGL rated +< &rogram.
(ore im&ortant#6, &etitioner is deemed to ,ave 6ie#ded ,is rig,t to ,is 1u##
en)o6ment o1 ,is 1reedom o1 s&ee*, to regu#ation under PD 1986 and its ;RR as
te#evision station o2ners, &rogram &rodu*ers, and ,osts ,ave im&#ied#6 a**e&ted
t,e &o2er o1 (+R%I to regu#ate t,e broad*ast industr6.
Neit,er *an &etitionerAs virtua# inabi#it6 to s&ea3 in ,is &rogram during t,e
&eriod o1 sus&ension be &#ausib#6 treated as &rior restraint on 1uture s&ee*,. =or
vie2ed in its &ro&er &ers&e*tive, t,e sus&ension is in t,e nature o1 an intermediate
&ena#t6 1or uttering an un&rote*ted 1orm o1 s&ee*,. ;t is de1inite#6 a #esser
&unis,ment t,an t,e &ermissib#e *an*e##ation o1 eG,ibition or broad*ast &ermit or
#i*ense. ;n 1ine, t,e sus&ension meted 2as sim &art o1 t,e duties o1 t,e (+R%I
in t,e en1or*ement and administration o1 t,e #a2 2,i*, it is tas3ed to
im&#ement. <ie2ed in its &ro&er *onteGt, t,e sus&ension soug,t to &ena#i$e &ast
s&ee*, made on &rime!time KGL rated +< &rogramH it does not bar 1uture s&ee*, o1
&etitioner in ot,er te#evision &rogramsH it is a &ermissib#e subseFuent
administrative san*tionH it s,ou#d not be *on1used 2it, a &rior restraint on
s&ee*,. >,i#e not on a## 1ours, t,e %ourt, in *-RC2,
4665
sustained t,e &o2er o1 t,e
(+R%I to &ena#i$e a broad*ast *om&an6 1or eG,ibitingEairing a &re!ta&ed +<
e&isode 2it,out Ioard aut,ori$ation in vio#ation o1 "e*. - o1 PD 1986.
'n6 sim&#isti* suggestion, ,o2ever, t,at t,e (+R%I 2ou#d be *rossing t,e
#imits o1 its aut,orit6 2ere it to regu#ate and even restrain t,e &rime!time te#evision
broad*ast o1 inde*ent or obs*ene s&ee*, in a KGL rated &rogram is not
a**e&tab#e. 's made *#ear in ?astern 2road!asting Corporation, Kt,e 1reedom o1
te#evision and radio broad*asting is some2,at #esser in s*o&e t,an t,e 1reedom
a**orded to ne2s&a&er and &rint media.L +,e (+R%I, as a regu#ator6 agen*6,
must ,ave t,e 2,ere2it,a# to en1or*e its mandate, 2,i*, 2ou#d not be e11e*tive i1
its &unitive a*tions 2ou#d be #imited to mere 1ines. +e#evision broad*asts s,ou#d
be sub)e*t to some 1orm o1 regu#ation, *onsidering t,e ease 2it, 2,i*, t,e6 *an be
a**essed, and vio#ations o1 t,e regu#ations must be met 2it, a&&ro&riate and
&ro&ortiona# dis*i&#inar6 a*tion. +,e sus&ension o1 a vio#ating te#evision &rogram
2ou#d be a su11i*ient &unis,ment and serve as a deterrent 1or t,ose
res&onsib#e. +,e &revention o1 t,e broad*ast o1 &etitionerAs te#evision &rogram is
)usti1ied, and does not *onstitute &ro,ibited &rior restraint. ;t be,ooves t,e %ourt
to res&ond to t,e needs o1 t,e *,anging times, and *ra1t )uris&ruden*e to re1#e*t
t,ese times.
Petitioner, in Fuestioning t,e t,ree!mont, sus&ension, a#so tags as
un*onstitutiona# t,e ver6 #a2 *reating t,e (+R%I, arguing t,at PD 1986, as
a&&#ied to ,im, in1ringes a#so u&on ,is 1reedom o1 re#igion. +,e %ourt ,as ear#ier
adeFuate#6 eG&#ained 2,6 &etitionerAs undue re#ian*e on t,e re#igious 1reedom
*annot #end )usti1i*ation, #et a#one an eGem&ting dimension to ,is #i*entious
utteran*es in ,is &rogram. +,e %ourt sees no need to address ane2 t,e re&etitive
arguments on re#igious 1reedom. 's ear#ier dis*ussed in t,e dis&osition o1 t,e
&etition in G.R. No. 160-85, 2,at 2as uttered 2as in no 2a6 a re#igious
s&ee*,. Parent,eti*a##6, &etitionerAs attem&t to *,ara*teri$e ,is s&ee*, as a
#egitimate de1ense o1 ,is re#igion 1ai#s miserab#6. :e tries to &#a*e ,is 2ords in
&ers&e*tive, arguing evident#6 as an a1tert,oug,t t,at t,is 2as ,is met,od o1
re1uting t,e a##eged distortion o1 ,is statements b6 t,e ;N% ,osts o1 ;ng -amang
:aan. Iut on t,e nig,t ,e uttered t,em in ,is te#evision &rogram, t,e 2ord sim
*ame out as &ro1ane #anguage, 2it,out an6 2arning or guidan*e 1or undis*erning
ears.
's to &etitionerAs ot,er argument about ,aving been denied due &ro*ess and
eFua# &rote*tion o1 t,e #a2, su11i*e it to state t,at 2e ,ave at #engt, debun3ed
simi#ar arguments in G.R. No. 160-85. +,ere is no need to 1urt,er de#ve into t,e
1a*t t,at &etitioner 2as a11orded due &ro*ess 2,en ,e attended t,e ,earing o1 t,e
(+R%I, and t,at ,e 2as unab#e to demonstrate t,at ,e 2as un)ust#6 dis*riminated
against in t,e (+R%I &ro*eedings.
=ina##6, &etitioner argues t,at t,ere ,as been undue de#egation o1 #egis#ative
&o2er, as PD 1986 does not &rovide 1or t,e range o1 im&osab#e &ena#ties t,at ma6
be a&&#ied 2it, res&e*t to vio#ations o1 t,e &rovisions o1 t,e #a2.
+,e argument is 2it,out merit.
;n ?du v. ?ri!ta, t,e %ourt dis*ussed t,e matter o1 undue de#egation o1
#egis#ative &o2er in t,e 1o##o2ing 2ise:
;t is a 1undamenta# &rin*i&#e 1#o2ing 1rom t,e do*trine o1 se&aration o1
&o2ers t,at %ongress ma6 not de#egate its #egis#ative &o2er to t,e t2o ot,er
bran*,es o1 t,e government, sub)e*t to t,e eG*e&tion t,at #o*a# governments ma6
over #o*a# a11airs &arti*i&ate in its eGer*ise. >,at *annot be de#egated is t,e
aut,orit6 under t,e %onstitution to ma3e #a2s and to a#ter and re&ea# t,emH t,e
test is t,e *om&#eteness o1 t,e statute in a## its term and &rovisions 2,en it #eaves
t,e ,ands o1 t,e #egis#ature. +o determine 2,et,er or not t,ere is an undue
de#egation o1 #egis#ative &o2er, t,e inFuir6 must be dire*ted to t,e s*o&e and
de1initeness o1 t,e measure ena*ted. +,e #egis#ature does not abdi*ate its
1un*tions 2,en it des*ribes 2,at )ob must be done, 2,o is to do it, and 2,at is t,e
s*o&e o1 ,is aut,orit6. =or a *om&#eG e*onom6, t,at ma6 indeed be t,e on#6 2a6
in 2,i*, t,e #egis#ative &ro*ess *an go 1or2ard. ' distin*tion ,as rig,t1u##6 been
made bet2een de#egation o1 &o2er to ma3e #a2s 2,i*, ne*essari#6 invo#ves a
dis*retion as to 2,at it s,a## be, 2,i*, *onstitutiona##6 ma6 not be done, and
de#egation o1 aut,orit6 or dis*retion as to its eGe*ution to be eGer*ised under and
in &ursuan*e o1 t,e #a2, to 2,i*, no va#id ob)e*tion *an be made. +,e
%onstitution is t,us not to be regarded as den6ing t,e #egis#ature t,e ne*essar6
resour*es o1 1#eGibi#it6 and &ra*ti*abi#it6.
+o avoid t,e taint o1 un#a21u# de#egation, t,ere must be a standard, 2,i*,
im&#ies at t,e ver6 #east t,at t,e #egis#ature itse#1 determines matters o1 &rin*i&#e
and #a6s do2n 1undamenta# &o#i*6. @t,er2ise, t,e *,arge o1 *om&#ete abdi*ation
ma6 be ,ard to re&e#. ' standard t,us de1ines #egis#ative &o#i*6, mar3s its #imits,
ma&s out its boundaries and s&e*i1ies t,e &ub#i* agen*6 to a& it. ;t indi*ates
t,e *ir*umstan*es under 2,i*, t,e #egis#ative *ommand is to be e11e*ted. ;t is t,e
*riterion b6 2,i*, #egis#ative &ur&ose ma6 be *arried out. +,erea1ter, t,e
eGe*utive or administrative o11i*e designated ma6 in &ursuan*e o1 t,e above
guide#ines &romu#gate su&&#ementa# ru#es and regu#ations.
46-5
Iased on t,e 1oregoing &ronoun*ements and ana#6$ing t,e #a2 in Fuestion,
&etitionerAs &rotestation about undue de#egation o1 #egis#ative &o2er 1or t,e so#e
reason t,at PD 1986 does not &rovide 1or a range o1 &ena#ties 1or vio#ation o1 t,e
#a2 is untenab#e. :is t,esis is t,at (+R%I, in &romu#gating t,e ;RR o1 PD 1986,
&res*ribing a s*,edu#e o1 &ena#ties 1or vio#ation o1 t,e &rovisions o1 t,e de*ree,
2ent be6ond t,e terms o1 t,e #a2.
PetitionerAs &osture is 1#a2ed b6 t,e erroneous assum&tions ,o#ding it
toget,er, t,e 1irst assum&tion being t,at PD 1986 does not &res*ribe t,e im&osition
o1, or aut,ori$e t,e (+R%I to im&ose, &ena#ties 1or vio#ators o1 PD 1986. 's
ear#ier indi*ated, ,o2ever, t,e (+R%I, b6 eG&ress and dire*t *on1erment o1
&o2er and 1un*tions, is *,arged 2it, su&ervising and regu#ating, granting, den6ing,
or *an*e#ing &ermits 1or t,e eG,ibition andEor te#evision broad*ast o1 a## motion
&i*tures, te#evision &rograms, and &ub#i*it6 materia#s to t,e end t,at no su*,
ob)e*tionab#e &i*tures, &rograms, and materia#s s,a## be eG,ibited andEor broad*ast
b6 te#evision. %om&#ementing t,is &rovision is "e*. 3839 o1 t,e de*ree aut,ori$ing
t,e (+R%I Kto eGer*ise su*, &o2ers and 1un*tions as ma6 be ne*essar6 or
in*identa# to t,e attainment o1 t,e &ur&ose and ob)e*tives o1 4t,e #a25.L 's ear#ier
eG&#ained, t,e investiture o1 su&ervisor6, regu#ator6, and dis*i&#inar6 &o2er 2ou#d
sure#6 be a meaning#ess grant i1 it did not *arr6 2it, it t,e &o2er to &ena#i$e t,e
su&ervised or t,e regu#ated as ma6 be &ro&ortionate to t,e o11ense *ommitted,
*,arged, and &roved. 's t,e %ourt said inChave( v. %ational 1ousing ;uthority:
G G G 4>5,en a genera# grant o1 &o2er is *on1erred or dut6 en)oined, ever6
&arti*u#ar &o2er ne*essar6 1or t,e eGer*ise o1 t,e one or t,e &er1orman*e o1 t,e
ot,er is a#so *on1erred. G G G 4>5,en t,e statute does not s&e*i16 t,e &arti*u#ar
met,od to be 1o##o2ed or used b6 a government agen*6 in t,e eGer*ise o1 t,e
&o2er vested in it b6 #a2, said agen*6 ,as t,e aut,orit6 to ado&t an6 reasonab#e
met,od to *arr6 out its 1un*tion.
4685
Given t,e 1oregoing &ers&e*tive, it stands to reason t,at t,e &o2er o1 t,e
(+R%I to regu#ate and su&ervise t,e eG,ibition o1 +< &rograms *arries 2it, it or
ne*essari#6 im&#ies t,e aut,orit6 to ta3e e11e*tive &unitive a*tion 1or vio#ation o1
t,e #a2 soug,t to be en1or*ed. 'nd 2ou#d it not be #ogi*a# too to sa6 t,at t,e
&o2er to den6 or *an*e# a &ermit 1or t,e eG,ibition o1 a +< &rogram or broad*ast
ne*essari#6 in*#udes t,e #esser &o2er to sus&endQ
+,e (+R%I &romu#gated t,e ;RR o1 PD 1986 in a**ordan*e 2it, "e*. 38a9
2,i*,, 1or re1eren*e, &rovides t,at agen*6 2it, t,e &o2er K4to5 &romu#gate su*,
ru#es and regu#ations as are ne*essar6 or &ro&er 1or t,e im&#ementation o1 t,is '*t,
and t,e a**om&#is,ment o1 its &ur&oses and ob)e*tives G G G.L 'nd %,a&ter C;;;,
"e*. 1 o1 t,e ;RR &roviding:
"e*tion 1. <;@7'+;@N" 'ND 'D(;N;"+R'+;<? "'N%+;@N".JJ
>it,out &re)udi*e to t,e immediate 1i#ing o1 t,e a&&ro&riate *rimina# a*tion and
t,e immediate sei$ure o1 t,e &ertinent arti*#es &ursuant to "e*tion 13, an'
*",a#"n $ P5 :C=> and "#& I)(,e)en#"n! R+,e& and Re!+,a#"n& !*ern"n!
)#"n ("c#+re&, #e,e*"&"n (r!ra)&, and re,a#ed (r)#"na, )a#er"a,& &%a,,
-e (ena,"@ed /"#% &+&(en&"n r cance,,a#"n $ (er)"#& andKr ,"cen&e& "&&+ed
-' #%e Bard andEor 2it, t,e im&osition o1 1ines and ot,er administrative
&ena#t6E&ena#ties. +,e Ioard re*ogni$es t,e eGisting +ab#e o1 'dministrative
Pena#ties atta*,ed 2it,out &re)udi*e to t,e &o2er o1 t,e Ioard to amend it 2,en
t,e need arises. ;n t,e meantime t,e eGisting revised +ab#e o1 'dministrative
Pena#ties s,a## be en1or*ed. 8?m&,asis added.9
+,is is, in t,e 1ina# ana#6sis, no more t,an a measure to s&e*i1i*a##6
im&#ement t,e a1oreFuoted &rovisions o1 "e*. 38d9 and 839. %ontrar6 to 2,at
&etitioner im&#ies, t,e ;RR does not eG&and t,e mandate o1 t,e (+R%I under t,e
#a2 or &arta3e o1 t,e nature o1 an unaut,ori$ed administrative #egis#ation. +,e
(+R%I *annot s,ir3 its res&onsibi#it6 to regu#ate t,e &ub#i* air2aves and em&#o6
su*, means as it *an as a guardian o1 t,e &ub#i*.
;n "e*. 38*9, one *an a#read6 1ind t,e &ermissib#e a*tions o1 t,e (+R%I,
a#ong 2it, t,e standards to be a&&#ied to determine 2,et,er t,ere ,ave been
statutor6 brea*,es. +,e (+R%I ma6 eva#uate motion &i*tures, te#evision
&rograms, and &ub#i*it6 materia#s Ka&ing *ontem&orar6 =i#i&ino *u#tura# va#ues
as standard,L and, 1rom t,ere, determine 2,et,er t,ese audio and video materia#s
Kare ob)e*tionab#e 1or being immora#, inde*ent, *ontrar6 to #a2 andEor good
*ustoms, 4et*.5 G G GL and a& t,e san*tions it deems &ro&er. +,e #a2ma3ing
bod6 *annot &ossib#6 &rovide 1or a## t,e detai#s in t,e en1or*ement o1 a &arti*u#ar
statute.
4695
+,e grant o1 t,e ru#e!ma3ing &o2er to administrative agen*ies is a
re#aGation o1 t,e &rin*i&#e o1 se&aration o1 &o2ers and is an eG*e&tion to t,e non!
de#egation o1 #egis#ative &o2ers.
4-/5
'dministrative regu#ations or Ksubordinate
#egis#ationL *a#*u#ated to &romote t,e &ub#i* interest are ne*essar6 be*ause o1 Kt,e
gro2ing *om&#eGit6 o1 modern #i1e, t,e mu#ti&#i*ation o1 t,e sub)e*ts o1
governmenta# regu#ations, and t,e in*reased di11i*u#t6 o1 administering t,e
#a2.L
4-15
'##o2ing t,e (+R%I some reasonab#e e#bo2!room in its o&erations and,
in t,e eGer*ise o1 its statutor6 dis*i&#inar6 1un*tions, a**ording it am&#e #atitude in
1iGing, b6 2a6 o1 an a&&ro&riate issuan*e, administrative &ena#ties 2it, due regard
1or t,e severit6 o1 t,e o11ense and attending mitigating or aggravating
*ir*umstan*es, as t,e *ase ma6 be, 2ou#d be *onsistent 2it, its mandate to
e11e*tive#6 and e11i*ient#6 regu#ate t,e movie and te#evision industr6.
Iut even as 2e u&,o#d t,e &o2er o1 t,e (+R%I to revie2 and im&ose
san*tions 1or vio#ations o1 PD 1986, its de*ision to sus&end &etitioner must be
modi1ied, 1or no2,ere in t,at issuan*e, &arti*u#ar#6 t,e &o2er!de1ining "e*. 3 nor
in t,e (+R%I "*,edu#e o1 'dministrative Pena#ties e11e*tive Januar6 1, 1999 is
t,e Ioard em&o2ered to sus&end t,e &rogram ,ost or even to &revent *ertain
&eo&#e 1rom a&&earing in te#evision &rograms. +,e (+R%I, to be sure, ma6
&ro,ibit t,e broad*ast o1 su*, te#evision &rograms or *an*e# &ermits 1or eG,ibition,
but it ma6 not sus&end te#evision &ersona#ities, 1or su*, 2ou#d be be6ond its
)urisdi*tion. +,e (+R%I *annot eGtend its eGer*ise o1 regu#ation be6ond 2,at t,e
#a2 &rovides. @n#6 &ersons, o11enses, and &ena#ties *#ear#6 1a##ing *#ear#6 2it,in
t,e #etter and s&irit o1 PD 1986 2i## be *onsidered to be 2it,in t,e de*reeAs &ena#
or dis*i&#inar6 o&eration. 'nd 2,en it eGists, t,e reasonab#e doubt must be
reso#ved in 1avor o1 t,e &erson *,arged 2it, vio#ating t,e statute and 1or 2,om t,e
&ena#t6 is soug,t. +,us, t,e (+R%IAs de*ision in 'dministrative %ase No. /1!/0
dated "e&tember .-, .//0 and t,e subseFuent order issued &ursuant to said
de*ision must be modi1ied. +,e sus&ension s,ou#d *over on#6 t,e te#evision
&rogram on 2,i*, &etitioner a&&eared and uttered t,e o11ensive and obs*ene
#anguage, 2,i*, san*tion is 2,at t,e #a2 and t,e 1a*ts obtaining *a## 1or.
;n ending, 2,at &etitioner obvious#6 advo*ates is an unrestri*ted s&ee*,
&aradigm in 2,i*, abso#ute &ermissiveness is t,e norm. PetitionerAs 1#a2ed be#ie1
t,at ,e ma6 sim utter gutter &ro1anit6 on te#evision 2it,out adverse
*onseFuen*es, under t,e guise o1 1ree s&ee*,, does not #end itse#1 to a**e&tan*e in
t,is )urisdi*tion. >e re&eat: 1reedoms o1 s&ee*, and eG&ression are not abso#ute
1reedoms. +o sa6 Kan6 a*t t,at restrains s&ee*, s,ou#d be greeted 2it, 1urro2ed
bro2sL is not to sa6 t,at an6 a*t t,at restrains or regu#ates s&ee*, or eG&ression
is per se inva#id. +,is on#6 re*ogni$es t,e im&ortan*e o1 1reedoms o1 s&ee*, and
eG&ression, and indi*ates t,e ne*essit6 to *are1u##6 s*rutini$e a*ts t,at ma6 restrain
or regu#ate s&ee*,.
3HERE4ORE, t,e de*ision o1 t,e (+R%I in 'dm. %ase No. /1!/0 dated
"e&tember .-, .//0 is ,ereb6 A44IRME52it, t,e MO5I4ICATION o1 #imiting
t,e sus&ension to t,e &rogram ;ng :ating :aan. 's t,us modi1ied, t,e allo o1 t,e
(+R%I s,a## read as 1o##o2s:
>:?R?=@R?, in vie2 o1 a## t,e 1oregoing, a De*ision is ,ereb6
rendered, im&osing a &ena#t6 o1 THREE (1) MONTHS S7SPENSION n #%e
#e,e*"&"n (r!ra), An* Datin* Daan, sub)e*t o1 t,e instant &etition.
%o!res&ondents Jose#ito (a##ari, 7u$viminda %ru$, and BN+< %,anne#
3- and its o2ner, PI%, are ,ereb6 eGonerated 1or #a*3 o1 eviden*e.
%osts against &etitioner.
SO OR5ERE5.
PRESBITERO J. VELASCO, JR.
'sso*iate Justi*e
>? %@N%BR:
REYNATO S. P7NO
%,ie1 Justi*e
LEONAR5O A. 87IS7MBING CONS7ELO YNARES-SANTIAGO
'sso*iate Justi*e 'sso*iate Justi*e
ANTONIO T. CARPIO MA. ALICIA A7STRIA-MARTINED
'sso*iate Justi*e 'sso*iate Justi*e
RENATO C. CORONA CONCHITA CARPIO MORALES
'sso*iate Justi*e 'sso*iate Justi*e
5ANTE O. TINGA MINITA V. CHICO-NADARIO
'sso*iate Justi*e 'sso*iate
Justi*e
ANTONIO E57AR5O B. NACH7RA TERESITA J. LEONAR5O-5E
'sso*iate Justi*e CASTRO
'sso*iate Justi*e
ART7RO 5. BRION 5IOS5A5O M.
PERALTA
'sso*iate Justi*e 'sso*iate Justi*e
L7CAS P. BERSAMIN
'sso*iate Justi*e
C E R T I 4 I C A T I O N
Pursuant to "e*tion 13, 'rti*#e <;;; o1 t,e %onstitution, it is ,ereb6 *erti1ied
t,at t,e *on*#usions in t,e above De*ision 2ere rea*,ed in *onsu#tation be1ore t,e
*ase 2as assigned to t,e 2riter o1 t,e o&inion o1 t,e %ourt.
REYNATO S. P7NO
%,ie1 Justi*e
415
Rollo 8G.R. No. 1656369, &. 3-5.
4.5
;d. at 9.3.
435
;d. at 9.0, Private Res&ondentsA (emorandum.
405
;d. at 11/.
455
;d. at 11.!113, Ru#es o1 Pro*edure in t,e %ondu*t o1 :earing 1or <io#ations o1 PD 1986 and t,e ;RR.
465
;d. at 101!151.
4-5
;d. at 15.!150.
485
;d. at 166!.5..
495
;d. at 3-8.
41/5
;d. at 18..
4115
;d. at 06.
41.5
;(ar!on v. Sandiganbayan, G.R. No. 116/33, =ebruar6 .6, 199-, .68 "%R' -0-.
4135
9imentel v. CO*?L?C, Nos. 7!53581!83, De*ember 19, 198/, 1/1 "%R' -69.
4105
'g&a#o, 'D(;N;"+R'+;<? 7'> 8.//59H *iting *atien(on v. ;bellera, G.R. No. --63., June 8,
1988, 16. "%R' 1.
4155
Lastimoso v. ,as#ue(, G.R. No. 1168/1, '&ri# 6, 1995, .03 "%R' 09-.
4165
;lon(o v. Capulong, G.R. No. 11/59/, (a6 1/, 1995, .00 "%R' 8/H 2e'a v. Court o ;ppeals, G.R.
No. 9-109, (ar*, 31, 199., ./- "%R' 689.
41-5
Chave( v. %ational 1ousing ;uthority, G.R. No. 1605.-, 'ugust 15, .//-, 53/ "%R' .35, .95!.96H
*iting ;(ar!on, su&ra note 1., at -61H Radio Communi!ations o the 9hilippines) In!. v. Santiago, Nos. 7!.9.36 D
.9.0-, 'ugust .1, 19-0, 58 "%R' 093, 09-.
4185
63 P,i#. 139, 1-- 819369.
4195
Rollo 8G.R. No. 160-859, &. 1..
4./5
;d. at 90.
4.15
;d. at 95.
4..5
2e'a, su&ra note 16H ?spiritu v. *elgar, G.R. No. 1//8-0, =ebruar6 13, 199., ./6 "%R' .56.
4.35
1 De 7eon, P:;7;PP;N? %@N"+;+B+;@N'7 7'> .-0 8.//39.
4.05
-iu v. +uingona, G.R. No. 1.-01/, Januar6 ./, 1999, 3/1 "%R' .-8H *iting I!hong v. 1ernande(, 1/1
P,i#. 1155 8195-9 and ot,er *ases.
4.55
@S v. 9aramount 9i!tures, 330 B.". 131H ?astern 2road!asting Corporation v. :ans, Jr., No. 7!593.9,
Ju#6 19, 1985, 13- "%R' 6.8.
4.65
?astern 2road!asting Corporation v. :ans) Jr., su&ra note .5H *iting /CC v. 9a!ii!a /oundation,
038 B.". -.6H +on(ales v. Galaw Gatigbak, No. 7!695//, Ju#6 .., 1985, 13- "%R' -1-.
4.-5
J.G. Iernas, ".J., +:? %@N"+;+B+;@N @= +:? R?PBI7;% @= +:? P:;7;PP;N?": '
%@((?N+'R ./5 819969.
4.85
Lagunsad v. Soto vda. :e +on(ales, No. 7!3./66, 'ugust 6, 19-9, 9. "%R' 0-6.
4.95
-rohwerk v. @nited States) .09 B.". ./0 819199H *ited in Iernas, su&ra at .18.
43/5
G.R. No. 136185, @*tober 3/, .///, 300 "%R' 081, 09/.
4315
315 B.". 568 8190.9.
43.5
'g&a#o, P:;7;PP;N? %@N"+;+B+;@N'7 7'> 358 8.//69.
4335
Chaplinsky, su&ra note 31H *ited in Iernas, su&ra note .-, at .08.
4305
Iernas, su&ra note .-, at .08.
4355
G.R. No. 159-51, De*ember 6, .//6, 51/ "%R' 351, 36/!361.
4365
013 B.". 15.
43-5
038 B.". -.6.
4385
"u&ra note .5.
4395
G.R. No. 168338, =ebruar6 15, .//8, 505 "%R' 001.
40/5
K",it, &iss, 1u*3, tits, et*.L
4015
"u&ra note 39.
40.5
"u&ra note .6.
4035
+on(ales v. Galaw Gatigbak, su&ra.
4005
9harma!euti!al and 1ealth Care ;sso!iation o the 9hilippines v. 1ealth Se!retary /ran!is!o -. :u#ue
III, G.R. No. 1-3/30, @*tober 9, .//-, 535 "%R' .65.
4055
2ayan v. ?rmita, G.R. No. 169838, '&ri# .5, .//6, 088 "%R' ..6.
4065
16' 'm Jur. .d %onstitutiona# 7a2 "e*. 093H S!hen!k v. @nited States, .09 B.". 0-.
40-5
Iernas, su&ra note .-, at .19!../.
4085
+on(ales v. CO*?L?C, No. 7!.-833, '&ri# 18, 1969, .- "%R' 835.
4095
;2S$C2% 2road!asting Corp. v. CO*?L?C, G.R. No. 133086, Januar6 .8, .///, 3.3 "%R'
811H ;diong v. CO*?L?C, G.R. No. 1/3956, (ar*, 31, 199., ./- "%R' -1..
45/5
Ialdivar v. Sandiganbayan, G.R. Nos. -969/!-/- D 8/5-8, =ebruar6 1, 1989, 1-/ "%R' 1.
4515
"u&ra note .5, at 635.
45.5
No. 7!8.38/, '&ri# .9, 1988, 16/ "%R' 861.
4535
"u&ra note 08.
4505
"u&ra at 898.
4555
"u&ra at 899!9//.
4565
Nau&er, %;<;7 7;I?R+;?" 'ND +:? %@N"+;+B+;@N 113 819669H *ited in +on(ales v. CO*?L?C,
su&ra note 08H a#so *ited in J.G. Iernas, ".J., +:? 198- %@N"+;+B+;@N @= +:? R?PBI7;% @= +:?
P:;7;PP;N?": ' %@((?N+'R 8.//39.
45-5
;d.
4585
Iernas, su&ra note .-, at 81.
4595
%@N"+;+B+;@N, 'rt. ;;, "e*. 13.
46/5
;d., id., "e*. 1..
4615
;d.
46.5
"u&ra note .6, at -.9.
4635
G.R. No. 1196-3, Ju#6 .6, 1996, .59 "%R' 5.9, 500, 55..
4605
"u&ra note 56, at .35.
4655
G.R. No. 155.8., Januar6 1-, .//5, 008 "%R' 5-5.
4665
"u&ra note 65.
46-5
No. 7!3./96, @*tober .0, 19-/, 35 "%R' 081, 096!09-.
4685
"u&ra note 1-H *iting ;ngara v. ?le!toral Commission, 63 P,i#. 139 819369H 9rovident -ree /arms) In!.
v. 2atario) Jr., G.R. No. 9..85, (ar*, .8, 1990, .31 "%R' 063.
4695
9eople v. *a!eren, No. 7!3.166, @*tober 18, 19--, -9 "%R' 05/, 058.
4-/5
;d.
4-15
;d.
+oday is +uesday, July 1/, !514
<epublic o' the "hilippines
SU6REME COURT
&anila
EN BANC
G.R. No. 173035 O)+o4e/ 9, 2007
6HARMACEUT$CAL AN3 HEALTH CARE ASSOC$AT$ON O" THE 6H$L$66$NES, petitioner,
vs.
HEALTH SECRETAR# "RANC$SCO T. 3U<UE $$$I HEALTH UN3ER SECRETAR$ES 3R. ETHEL#N 6. N$ETO, 3R. MARGAR$TA
M. GALON, ATT#. ALE7AN3ER A. 6A3$LLA, N 3R. JA3E ". 3EL MUN3OI n! ASS$STANT SECRETAR$ES 3R. MAR$O C.
%$LLA%ER3E, 3R. 3A%$3 J. LO1A3A, AN3 3R. NEMES$O T. GA;O,respondents.
3 E C $ S $ O N
AUSTR$A-MART$NE1, J.>
+he Court and all parties involved are in a)ree$ent that the best nourish$ent 'or an in'ant is $other1s $ilk. +here is nothin) )reater
than 'or a $other to nurture her beloved child strai)ht 'ro$ her boso$. +he ideal is, o' course, 'or each and every Filipino child to
en>oy the uneDualed bene'its o' breast$ilk. 8ut ho( should this end be attainedI
8e'ore the Court is a petition 'or certiorari under <ule 6/ o' the <ules o' Court, seekin) to nulli'y ;d$inistrative 6rder 2;.6.3 #o.
!556-551! entitled, Revised Implementing Rules and Regulations of !ecutive "rder #o. $%, "ther&ise 'no&n as The ()il*
Code,( Relevant International +greements, ,enali-ing .iolations Thereof, and for "ther ,urposes 2<:<<3. "etitioner posits
that the <:<< is not valid as it contains provisions that are not constitutional and )o beyond the la( it is supposed to i$ple$ent.
#a$ed as respondents are the ,ealth Secretary, Andersecretaries, and ;ssistant Secretaries o' the Cepart$ent o' ,ealth 2C6,3.
For purposes o' herein petition, the C6, is dee$ed i$pleaded as a co-respondent since respondents issued the Duestioned <:<<
in their capacity as o''icials o' said e9ecutive a)ency.
1
79ecutive 6rder #o. /1 2&ilk Code3 (as issued by "resident Corazon ;Duino on 6ctober !J, 19J6 by virtue o' the le)islative po(ers
)ranted to the president under the Freedo$ Constitution. 6ne o' the prea$bular clauses o' the &ilk Code states that the la( seeks
to )ive e''ect to ;rticle 11
!
o' the :nternational Code o' &arketin) o' 8reast$ilk Substitutes 2:C&8S3, a code adopted by the World
,ealth ;sse$bly 2W,;3 in 19J1. Fro$ 19J! to !556, the W,; adopted several <esolutions to the e''ect that breast'eedin) should
be supported, pro$oted and protected, hence, it should be ensured that nutrition and health clai$s are not per$itted 'or breast$ilk
substitutes.
:n 1995, the "hilippines rati'ied the :nternational Convention on the <i)hts o' the Child. ;rticle !4 o' said instru$ent provides that
State "arties should take appropriate $easures to di$inish in'ant and child $ortality, and ensure that all se)$ents o' society,
specially parents and children, are in'or$ed o' the advanta)es o' breast'eedin).
6n &ay 1/, !556, the C6, issued herein assailed <:<< (hich (as to take e''ect on July 0, !556.
,o(ever, on June !J, !556, petitioner, representin) its $e$bers that are $anu'acturers o' breast$ilk substitutes, 'iled the present
"etition 'or ,ertiorari and "rohibition (ith "rayer 'or the :ssuance o' a +e$porary <estrainin) 6rder 2+<63 or Writ o' "reli$inary
:n>unction.
+he $ain issue raised in the petition is (hether respondents o''icers o' the C6, acted (ithout or in e9cess o' >urisdiction, or (ith
)rave abuse o' discretion a$ountin) to lack or e9cess o' >urisdiction, and in violation o' the provisions o' the Constitution in
pro$ul)atin) the <:<<.
6n ;u)ust 1/, !556, the Court issued a <esolution )rantin) a +<6 en>oinin) respondents 'ro$ i$ple$entin) the Duestioned <:<<.
;'ter the Co$$ent and <eply had been 'iled, the Court set the case 'or oral ar)u$ents on June 19, !550. +he Court issued an
;dvisory 2@uidance 'or 6ral ;r)u$ents3 dated June /, !550, to (it*
+he Court hereby sets the 'ollo(in) issues*
1. Whether or not petitioner is a real party-in-interest=
!. Whether ;d$inistrative 6rder #o. !556-551! or the <evised :$ple$entin) <ules and <e)ulations 2<:<<3 issued
by the Cepart$ent o' ,ealth 2C6,3 is not constitutional=
!.1 Whether the <:<< is in accord (ith the provisions o' 79ecutive 6rder #o. /1 2&ilk Code3=
!.! Whether pertinent international a)ree$ents
1
entered into by the "hilippines are part o' the la( o' the land and
$ay be i$ple$ented by the C6, throu)h the <:<<= :' in the a''ir$ative, (hether the <:<< is in accord (ith the
international a)ree$ents=
!. Whether Sections 4, /2(3, !!, !, 40, and /! o' the <:<< violate the due process clause and are in restraint o'
trade= and
!.4 Whether Section 1 o' the <:<< on +otal 7''ect provides su''icient standards.
NNNNNNNNNNNNN
1 213 Anited #ations Convention on the <i)hts o' the Child= 2!3 the W,6 and Anice' E!55! @lobal Strate)y on :n'ant
and -oun) Child Feedin)=E and 23 various World ,ealth ;sse$bly 2W,;3 <esolutions.
+he parties 'iled their respective $e$oranda.
+he petition is partly i$bued (ith $erit.
On the issue of petitionerIs standing
With re)ard to the issue o' (hether petitioner $ay prosecute this case as the real party-in-interest, the Court adopts the vie(
enunciated in 79ecutive Secretary v. Court o' ;ppeals,
4
to (it*
+he $odern vie( is that an association has standin) to co$plain o' in>uries to its $e$bers. +his vie( 'uses the le)al
identity o' an association (ith that o' its $e$bers. An ((o)&+&on '( (+n!&n- +o 0&8e (u&+ 0o/ &+( Bo/De/( !e(*&+e
&+( 8)D o0 !&/e)+ &n+e/e(+ &0 &+( .e.4e/( /e 00e)+e! 4, +'e )+&on. An o/-n&H+&on '( (+n!&n- +o ((e/+ +'e
)on)e/n( o0 &+( )on(+&+uen+(.
9 9 9 9
9 9 9 We note that, under its ;rticles o' :ncorporation, the respondent (as or)anized 9 9 9 to act as the representative
o' any individual, co$pany, entity or association on $atters related to the $anpo(er recruit$ent industry, and to
per'or$ other acts and activities necessary to acco$plish the purposes e$bodied therein. +he /e(*on!en+ &(, +'u(,
+'e **/o*/&+e */+, +o ((e/+ +'e /&-'+( o0 &+( .e.4e/(, 4e)u(e &+ n! &+( .e.4e/( /e &n e:e/, */)+&)8
(en(e &!en+&)8. 9 9 9 T'e /e(*on!en+ F((o)&+&onG &( 4u+ +'e .e!&u. +'/ou-' B'&)' &+( &n!&:&!u8 .e.4e/(
(eeD +o .De .o/e e00e)+&:e +'e eL*/e((&on o0 +'e&/ :o&)e( n! +'e /e!/e(( o0 +'e&/ -/&e:n)e(.
/
27$phasis
supplied3
(hich (as reasserted in 0uro( /agong Silang Association- 3nc. %. Quipco,
6
(here the Court ruled that an association has the le)al
personality to represent its $e$bers because the results o' the case (ill a''ect their vital interests.
0
,erein petitioner1s ;$ended ;rticles o' :ncorporation contains a si$ilar provision >ust like in 79ecutive Secretary, that the association
is 'or$ed Eto represent directly or throu)h approved representatives the phar$aceutical and health care industry be'ore the
"hilippine @overn$ent and any o' its a)encies, the $edical pro'essions and the )eneral public.E
J
+hus, as an or)anization, petitioner
de'initely has an interest in 'ul'illin) its avo(ed purpose o' representin) $e$bers (ho are part o' the phar$aceutical and health care
industry. "etitioner is duly authorized
9
to take the appropriate course o' action to brin) to the attention o' )overn$ent a)encies and
the courts any )rievance su''ered by its $e$bers (hich are directly a''ected by the <:<<. "etitioner, (hich is $andated by its
;$ended ;rticles o' :ncorporation to represent the entire industry, (ould be re$iss in its duties i' it 'ails to act on )overn$ental
action that (ould a''ect any o' its industry $e$bers, no $atter ho( 'e( or nu$erous they are. ,ence, petitioner, (hose le)al identity
is dee$ed 'used (ith its $e$bers, should be considered as a real party-in-interest (hich stands to be bene'ited or in>ured by any
>ud)$ent in the present action.
On the constitutionalit' of the pro%isions of the +3++
"&/(+, the Court (ill deter$ine i' pertinent international instru$ents adverted to by respondents are part o' the la( o' the land.
"etitioner assails the <:<< 'or alle)edly )oin) beyond the provisions o' the &ilk Code, thereby a$endin) and e9pandin) the
covera)e o' said la(. +he de'ense o' the C6, is that the <:<< i$ple$ents not only the &ilk Code but also various international
instru$ents
15
re)ardin) in'ant and youn) child nutrition. :t is respondents1 position that said international instru$ents are dee$ed part
o' the la( o' the land and there'ore the C6, $ay i$ple$ent the$ throu)h the <:<<.
+he Court notes that the 'ollo(in) international instru$ents invoked by respondents, na$ely* 213 +he Anited #ations Convention on
the <i)hts o' the Child= 2!3 +he :nternational Covenant on 7cono$ic, Social and Cultural <i)hts= and 23 the Convention on the
7li$ination o' ;ll For$s o' Ciscri$ination ;)ainst Wo$en, only provide in )eneral ter$s that steps $ust be taken by State "arties to
di$inish in'ant and child $ortality and in'or$ society o' the advanta)es o' breast'eedin), ensure the health and (ell-bein) o'
'a$ilies, and ensure that (o$en are provided (ith services and nutrition in connection (ith pre)nancy and lactation. Said
instru$ents do not contain speci'ic provisions re)ardin) the use or $arketin) o' breast$ilk substitutes.
+he international instru$ents that do have speci'ic provisions re)ardin) breast$ilk substitutes are the :C&8S and various W,;
<esolutions.
Ander the 19J0 Constitution, international la( can beco$e part o' the sphere o' do$estic la( either
by+/n(0o/.+&on or &n)o/*o/+&on.
11
+he trans'or$ation $ethod reDuires that an international la( be trans'or$ed into a do$estic
la( throu)h a constitutional $echanis$ such as local le)islation. +he incorporation $ethod applies (hen, by $ere constitutional
declaration, international la( is dee$ed to have the 'orce o' do$estic la(.
1!
+reaties beco$e part o' the la( o' the land throu)h +/n(0o/.+&on pursuant to ;rticle ?::, Section !1 o' the Constitution (hich
provides that EFnGo treaty or international a)ree$ent shall be valid and e''ective unless concurred in by at least t(o-thirds o' all the
$e$bers o' the Senate.E +hus, treaties or conventional international la( $ust )o throu)h a process prescribed by the Constitution
'or it to be trans'or$ed into $unicipal la( that can be applied to do$estic con'licts.
1
+he :C&8S and W,; <esolutions are not treaties as they have not been concurred in by at least t(o-thirds o' all $e$bers o' the
Senate as reDuired under Section !1, ;rticle ?:: o' the 19J0 Constitution.
,o(ever, the :C&8S (hich (as adopted by the W,; in 19J1 had been trans'or$ed into do$estic la( throu)h local le)islation, the
&ilk Code. ConseDuently, it is the &ilk Code that has the 'orce and e''ect o' la( in this >urisdiction and not the :C&8S per se.
+he &ilk Code is al$ost a verbati$ reproduction o' the :C&8S, but it is (ell to e$phasize at this point that the Code did not adopt
the provision in the $CMBS 4(o8u+e8, */o'&4&+&n- !:e/+&(&n- or other 'or$s o' pro$otion to the )eneral public o' products (ithin
the scope o' the :C&8S. :nstead, +'e M&8D Co!e eL*/e((8, */o:&!e( +'+ !:e/+&(&n-, */o.o+&on, o/ o+'e/ ./De+&n- .+e/&8(
., 4e 88oBe! &0 (u)' .+e/&8( /e !u8, u+'o/&He! n! **/o:e! 4, +'e $n+e/-A-en), Co..&++ee @$ACA.
6n the other hand, Section !, ;rticle :: o' the 19J0 Constitution, to (it*
S7C+:6# !. +he "hilippines renounces (ar as an instru$ent o' national policy, adopts the generally accepted
principles of international la& as part of the la& of the land and adheres to the policy o' peace, eDuality, >ustice,
'reedo$, cooperation and a$ity (ith all nations. 27$phasis supplied3
e$bodies the &n)o/*o/+&on $ethod.
14
:n Mi2ares %. +anada,
1/
the Court held thus*
F@Generally accepted principles o' international la(, by virtue o' the incorporation clause o' the Constitution, 'or$ part
o' the la(s o' the land even i' they do not derive 'ro$ treaty obli)ations. +he classical 'or$ulation in international la(
sees those custo$ary rules accepted as bindin) result 'ro$ the co$bination Fo'G t(o ele$ents* the established,
(idespread, and consistent practice on the part o' States= and a psycholo)ical ele$ent kno(n as the opinion
>uris (&:e ne)e((&++e( 2opinion as to la( or necessity3. :$plicit in the latter ele$ent is a belie' that the practice in
Duestion is rendered obli)atory by the e9istence o' a rule o' la( reDuirin) it.
16
27$phasis supplied3
E@enerally accepted principles o' international la(E re'ers to nor$s o' )eneral or custo$ary international la( (hich are bindin) on all
states,
10
i.e., renunciation o' (ar as an instru$ent o' national policy, the principle o' soverei)n i$$unity,
1J
a person1s ri)ht to li'e,
liberty and due process,
19
and pacta sunt ser%anda-
!5
a$on) others. +he concept o' E)enerally accepted principles o' la(E has also
been depicted in this (ise*
So$e le)al scholars and >ud)es look upon certain E)eneral principles o' la(E as a pri$ary source o' international la( because +'e,
':e +'e E)'/)+e/ o0 Mu( /+&on8eE n! /e E:8&! +'/ou-' 88 D&n!( o0 'u.n (o)&e+&e(.E 2Jud)e +anaka in his dissentin)
opinion in the 1966 South West ;'rica Case, 1966 :.C.J. !963. 61Connell holds that certain priniciples are part o' international la(
because +'e, /e E4(&) +o 8e-8 (,(+e.( -ene/88,E n! 'en)e */+ o0 +'e Mu( -en+&u.. +hese principles, he believes, are
established by a process o' reasonin) based on the co$$on identity o' all le)al syste$s. :' there should be doubt or disa)ree$ent,
one $ust look to state practice and deter$ine (hether the $unicipal la( principle provides a >ust and acceptable solution. 9 9
9
!1
27$phasis supplied3
Fr. JoaDuin @. 8ernas de'ines custo$ary international la( as 'ollo(s*
Custo$ or custo$ary international la( $eans Ea )eneral and consistent practice o' states 'ollo(ed by the$ 'ro$ a
sense o' le)al obli)ation Fopinio 2urisG.E 2<estate$ent3 T'&( (++e.en+ )on+&n( +'e +Bo 4(&) e8e.en+( o0
)u(+o.> +'e material factor, that &(, 'oB (++e( 4e':e, n! +'e *(,)'o8o-&)8 o/su/0ective factor, +'+ &(,
B', +'e, 4e':e +'e B, +'e, !o.
9 9 9 9
+he initial 'actor 'or deter$inin) the e9istence o' custo$ is the actual behavior o' states. +his includes several
ele$ents* duration, consistency, and )enerality o' the practice o' states.
+he reDuired duration can be either short or lon). 9 9 9
9 9 9 9
Curation there'ore is not the $ost i$portant ele$ent. &ore i$portant is the consistency and the )enerality o' the
practice. 9 9 9
9 9 9 9
6nce the e9istence o' state practice has been established, it beco$es necessary to deter$ine (hy states behave
the (ay they do. Co states behave the (ay they do because +'e, )on(&!e/ &+ o48&-+o/, to behave thus or !o +'e,
!o &+ on8, ( .++e/ o0 )ou/+e(,I "pinio 0uris, o/ +'e 4e8&e0 +'+ )e/+&n 0o/. o0 4e':&o/ &( o48&-+o/,, &(
B'+ .De( */)+&)e n &n+e/n+&on8 /u8e. Without it, practice is not la(.
!!
2Anderscorin) and 7$phasis supplied3
Clearly, custo$ary international la( is dee$ed incorporated into our do$estic syste$.
!
W,; <esolutions have not been e$bodied in any local le)islation. ,ave they attained the status o' custo$ary la( and should they
then be dee$ed incorporated as part o' the la( o' the landI
+he World ,ealth 6r)anization 2W,63 is one o' the international specialized a)encies allied (ith the Anited #ations 2A#3 by virtue
o' ;rticle /0,
!4
in relation to ;rticle 6
!/
o' the A# Charter. Ander the 1946 W,6 Constitution, it is the W,; (hich deter$ines the
policies o' the W,6,
!6
and has the po(er to adopt re)ulations concernin) Eadvertisin) and labelin) o' biolo)ical, phar$aceutical and
si$ilar products $ovin) in international co$$erce,E
!0
and to E$ake reco$$endations to $e$bers (ith respect to any $atter (ithin
the co$petence o' the 6r)anization.E
!J
+he le)al e''ect o' its re)ulations, as opposed to reco$$endations, is Duite di''erent.
<e)ulations, alon) (ith conventions and a)ree$ents, duly adopted by the W,; 4&n! .e.4e/ (++e( thus*
;rticle 19. +he ,ealth ;sse$bly shall have authority to adopt conventions or a)ree$ents (ith respect to any $atter
(ithin the co$petence o' the 6r)anization. ; t(o-thirds vote o' the ,ealth ;sse$bly shall be reDuired 'or the
adoption o' such )on:en+&on( o/ -/ee.en+(, (hich ('88 )o.e &n+o 0o/)e 0o/ e)' Me.4e/ B'en ))e*+e! 4,
&+ &n ))o/!n)e B&+' &+( )on(+&+u+&on8 */o)e((e(.
;rticle !5. E)' Me.4e/ un!e/+De( +'+ &+ B&88, (ithin ei)hteen $onths a'ter the adoption by the ,ealth ;sse$bly
o' a convention or a)ree$ent, +De )+&on /e8+&:e +o +'e ))e*+n)e o0 (u)' )on:en+&on o/ -/ee.en+. 7ach
&e$ber shall noti'y the Cirector-@eneral o' the action taken, and i' it does not accept such convention or a)ree$ent
(ithin the ti$e li$it, it (ill 'urnish a state$ent o' the reasons 'or non-acceptance. :n case o' acceptance, each
&e$ber a)rees to $ake an annual report to the Cirector-@eneral in accordance (ith Chapter S:?.
;rticle !1. +he ,ealth ;sse$bly shall have authority to adopt re)ulations concernin)* 2a3 sanitary and Duarantine
reDuire$ents and other procedures desi)ned to prevent the international spread o' disease= 2b3 no$enclatures (ith
respect to diseases, causes o' death and public health practices= 2c3 standards (ith respect to dia)nostic procedures
'or international use= 2d3 standards (ith respect to the sa'ety, purity and potency o' biolo)ical, phar$aceutical and
si$ilar products $ovin) in international co$$erce= 2e3 advertisin) and labelin) o' biolo)ical, phar$aceutical and
si$ilar products $ovin) in international co$$erce.
;rticle !!. +egulations adopted pursuant to Article = shall come into force for all Members after due notice has been
gi%en of their adoption b' the )ealth Assembl' e:cept for such Members as ma' notif' the 4irector-General of
re2ection or reser%ations within the period stated in the notice. 27$phasis supplied3
6n the other hand, un!e/ A/+&)8e 23, /e)o..en!+&on( o0 +'e WHA !o no+ )o.e &n+o 0o/)e 0o/ .e.4e/(,in the sa$e (ay that
conventions or a)ree$ents under ;rticle 19 and /e-u8+&on( un!e/ A/+&)8e 21 co$e into 'orce. ;rticle ! o' the W,6 Constitution
reads*
;rticle !. +he ,ealth ;sse$bly shall have authority to ma*e recommendations to &e$bers (ith respect to any
$atter (ithin the co$petence o' the 6r)anization. 27$phasis supplied3
+he absence o' a provision in ;rticle ! o' any $echanis$ by (hich the reco$$endation (ould co$e into 'orce 'or $e$ber states is
conspicuous.
+he 'or$er Senior %e)al 6''icer o' W,6, Sa$i Shubber, stated that W,; reco$$endations are )enerally not bindin), but they
Ecarry $oral and political (ei)ht, as they constitute the >ud)$ent on a health issue o' the collective $e$bership o' the hi)hest
international body in the 'ield o' health.E
!9
7ven the :C&8S itsel' (as adopted as a $ere reco$$endation, as W,; <esolution #o.
4.!! states*
E+he +hirty-Fourth World ,ealth ;sse$bly 9 9 9 adopts, &n +'e (en(e o0 A/+&)8e 23 o0 +'e Con(+&+u+&on, the
:nternational Code o' &arketin) o' 8reast$ilk Substitutes anne9ed to the present resolution.E 27$phasis supplied3
+he :ntroduction to the :C&8S also reads as 'ollo(s*
:n January 19J1, the 79ecutive 8oard o' the World ,ealth 6r)anization at its si9ty-seventh session, considered the
'ourth dra't o' the code, endorsed it, and unani$ously reco$$ended to the +hirty-'ourth World ,ealth ;sse$bly the
te9t o' a resolution by (hich &+ Bou8! !o*+ +'e )o!e &n +'e 0o/. o0 /e)o..en!+&on /+'e/ +'n /e-u8+&on.
9 9 9 27$phasis supplied3
+he le)al value o' W,; <esolutions as reco$$endations is su$$arized in ;rticle 6! o' the W,6 Constitution, to (it*
;rt. 6!. 7ach $e$ber shall report annually on the action taken (ith respect to reco$$endations $ade to it by the
6r)anization, and (ith respect to conventions, a)ree$ents and re)ulations.
;pparently, the W,; <esolution adoptin) the :C&8S and subseDuent W,; <esolutions ur)in) $e$ber states to i$ple$ent the
:C&8S are $erely reco$$endatory and le)ally non-bindin). T'u(, un8&De B'+ '( 4een !one B&+' +'e $CMBS B'e/e4, +'e
8e-&(8+u/e en)+e! .o(+ o0 +'e */o:&(&on( &n+o 8B B'&)' &( +'e M&8D Co!e, +'e (u4(eKuen+ WHA Re(o8u+&on(,
5
(*e)&0&)88,
*/o:&!&n- 0o/ eL)8u(&:e 4/e(+0ee!&n- 0/o. 0-6 .on+'(, )on+&nue! 4/e(+0ee!&n- u* +o 25 .on+'(, n! 4(o8u+e8,
*/o'&4&+&n- !:e/+&(e.en+( n! */o.o+&on( o0 4/e(+.&8D (u4(+&+u+e(, ':e no+ 4een !o*+e! ( !o.e(+&) 8B.
:t is propounded that W,; <esolutions $ay constitute Eso't la(E or non-bindin) nor$s, principles and practices that in'luence state
behavior.
1
ESo't la(E does not 'all into any o' the cate)ories o' international la( set 'orth in ;rticle J, Chapter ::: o' the 1946 Statute o' the
:nternational Court o' Justice.
!
:t is, ho(ever, an e9pression o' non-bindin) nor$s, principles, and practices that in'luence state
behavior.
Certain declarations and resolutions o' the A# @eneral ;sse$bly 'all under this cate)ory.
4
+he $ost notable is the A#
Ceclaration o' ,u$an <i)hts, (hich this Court has en'orced in various cases, speci'ically, Go%ernment of )ong(ong Special
Administrati%e +egion %. Olalia,
/
Me2off %. 4irector of 0risons,
6
Mi2ares %. +a#ada
0
and Shangri-la 3nternational )otel Management-
Ltd. %. 4e%elopers Group of ,ompanies- 3nc..
J
+he World :ntellectual "roperty 6r)anization 2W:"63, a specialized a)ency attached to the A# (ith the $andate to pro$ote and
protect intellectual property (orld(ide, has resorted to so't la( as a rapid $eans o' nor$ creation, in order Eto re'lect and respond to
the chan)in) needs and de$ands o' its constituents.E
9
6ther international or)anizations (hich have resorted to so't la( include the
:nternational %abor 6r)anization and the Food and ;)riculture 6r)anization 2in the 'or$ o' the ,ode: Alimentarius3.
45
W,6 has resorted to so't la(. +his (as $ost evident at the ti$e o' the Severe ;cute <espiratory Syndro$e 2S;<S3 and ;vian 'lu
outbreaks.
+lthough the I1R Resolution does not create ne& international la& /inding on 21" mem/er states, it
provides an e!cellent e!ample of the po&er of (soft la&( in international relations. International la&yers
typically distinguish /inding rules of international la&-(hard la&(-from non-/inding norms, principles, and
practices that influence state /ehavior-(soft la&.( 21" has during its e!istence generated many soft la&
norms, creating a (soft la& regime( in international governance for pu/lic health.
+he Eso't la(E S;<S and :,< <esolutions represent si)ni'icant steps in layin) the political )round(ork 'or i$proved
international cooperation on in'ectious diseases. +hese resolutions clearly de'ine W,6 $e$ber states1 nor$ative
duty to cooperate 'ully (ith other countries and (ith W,6 in connection (ith in'ectious disease surveillance and
response to outbreaks.
This duty is neither /inding nor enforcea/le, /ut, in the &a*e of the S+RS epidemic, the duty is po&erful
politically 'or t(o reasons. First, the S;<S outbreak has tau)ht the lesson that participatin) in, and enhancin),
international cooperation on in'ectious disease controls is in a country1s sel'-interest 9 9 9 i' this (arnin) is heeded,
the Eso't la(E in the S;<S and :,< <esolution could in'or$ the develop$ent o' )eneral and consistent state practice
on in'ectious disease surveillance and outbreak response, perhaps crystallizin) eventually into custo$ary
international la( on in'ectious disease prevention and control.
41
:n the "hilippines, the e9ecutive depart$ent i$ple$ented certain $easures reco$$ended by W,6 to address the outbreaks o'
S;<S and ;vian 'lu by issuin) 79ecutive 6rder 27.6.3 #o. !51 on ;pril !6, !55 and 7.6. #o. !J5 on February !, !554, dele)atin)
to various depart$ents broad po(ers to close do(n schoolsBestablish$ents, conduct health surveillance and $onitorin), and ban
i$portation o' poultry and a)ricultural products.
:t $ust be e$phasized that even under such an international e$er)ency, the duty o' a state to i$ple$ent the :,< <esolution (as
still considered not bindin) or en'orceable, althou)h said resolutions had )reat political in'luence.
;s previously discussed, 'or an international rule to be considered as custo$ary la(, it $ust be established that such rule is bein)
'ollo(ed by states because they )on(&!e/ &+ o48&-+o/, to co$ply (ith such rules 2opinio 2uris3. <espondents have not presented
any evidence to prove that the W,; <esolutions, althou)h si)ned by $ost o' the $e$ber states, (ere in 'act en'orced or practiced
by at least a $a>ority o' the $e$ber states= neither have respondents proven that any co$pliance by $e$ber states (ith said W,;
<esolutions (as obli)atory in nature.
<espondents 'ailed to establish that the provisions o' pertinent W,; <esolutions are custo$ary international la( that $ay be
dee$ed part o' the la( o' the land.
ConseDuently, le)islation is necessary to trans'or$ the provisions o' the W,; <esolutions into do$estic la(. T'e */o:&(&on( o0 +'e
WHA Re(o8u+&on( )nno+ 4e )on(&!e/e! ( */+ o0 +'e 8B o0 +'e 8n! +'+ )n 4e &.*8e.en+e! 4, eLe)u+&:e -en)&e(
B&+'ou+ +'e nee! o0 8B en)+e! 4, +'e 8e-&(8+u/e.
Se)on!, the Court (ill deter$ine (hether the C6, $ay i$ple$ent the provisions o' the W,; <esolutions by virtue o' its po(ers
and 'unctions under the <evised ;d$inistrative Code even in the absence o' a do$estic la(.
Section , Chapter 1, +itle :S o' the <evised ;d$inistrative Code o' 19J0 provides that the C6, shall !e0&ne +'e n+&on8 'e8+'
*o8&), and i$ple$ent a national health plan (ithin the 'ra$e(ork o' the )overn$ent1s )eneral policies and plans, and &((ue o/!e/(
n! /e-u8+&on( )on)e/n&n- +'e &.*8e.en++&on o0 e(+48&('e! 'e8+' *o8&)&e(.
:t is crucial to ascertain (hether the absolute prohibition on advertisin) and other 'or$s o' pro$otion o' breast$ilk substitutes
provided in so$e W,; <esolutions has been adopted as part o' the national health policy.
<espondents sub$it that the national policy on in'ant and youn) child 'eedin) is e$bodied in ;.6. #o. !55/-5514, dated &ay !,
!55/. 8asically, the ;d$inistrative 6rder declared the 'ollo(in) policy )uidelines* 213 ideal breast'eedin) practices, such as early
initiation o' breast'eedin), e9clusive breast'eedin) 'or the 'irst si9 $onths, e9tended breast'eedin) up to t(o years and beyond= 2!3
appropriate co$ple$entary 'eedin), (hich is to start at a)e si9 $onths= 23 $icronutrient supple$entation= 243 universal salt
iodization= 2/3 the e9ercise o' other 'eedin) options= and 263 'eedin) in e9ceptionally di''icult circu$stances. :ndeed, the pri$acy o'
breast'eedin) 'or children is e$phasized as a national health policy. HoBe:e/, noB'e/e &n A.O. No. 2009-0015 &( &+ !e)8/e! +'+
( */+ o0 (u)' 'e8+' *o8&),, +'e !:e/+&(e.en+ o/ */o.o+&on o0 4/e(+.&8D (u4(+&+u+e( ('ou8! 4e 4(o8u+e8, */o'&4&+e!.
+he national policy o' protection, pro$otion and support o' breast'eedin) cannot auto$atically be eDuated (ith a total ban on
advertisin) 'or breast$ilk substitutes.
:n vie( o' the enact$ent o' the &ilk Code (hich does not contain a total ban on the advertisin) and pro$otion o' breast$ilk
substitutes, but instead, speci'ically creates an :;C (hich (ill re)ulate said advertisin) and pro$otion, it 'ollo(s that a total ban
policy could be i$ple$ented only *u/(un+ +o 8B a$endin) the &ilk Code passed by the constitutionally authorized branch o'
)overn$ent, the le)islature.
+hus, only the provisions o' the &ilk Code, but no+ +'o(e o0 (u4(eKuen+ WHA Re(o8u+&on(, can be validly i$ple$ented by the
C6, throu)h the sub>ect <:<<.
T'&/!, the Court (ill no( deter$ine (hether the provisions o' the <:<< are in accordance (ith those o' the &ilk Code.
:n support o' its clai$ that the <:<< is inconsistent (ith the &ilk Code, petitioner alle)es the 'ollo(in)*
1. +he &ilk Code li$its its covera)e to children 5-1! $onths old, but the <:<< e9tended its covera)e to Eyoun)
childrenE or those 'ro$ a)es t(o years old and beyond*
M$L; CO3E R$RR
WHEREAS, in order to ensure that sa'e and
adeDuate nutrition 'or in'ants is provided, there
is a need to protect and pro$ote breast'eedin)
and to in'or$ the public about the proper use o'
breast$ilk substitutes and supple$ents and
related products throu)h adeDuate, consistent
and ob>ective in'or$ation and appropriate
re)ulation o' the $arketin) and distribution o'
the said substitutes, supple$ents and related
products=
SECT$ON 5@eA. E:n'antE $eans a person 'allin)
(ithin the a)e bracket o' 5-1! $onths.
Se)+&on 2. 6u/*o(e O +hese <evised <ules
and <e)ulations are hereby pro$ul)ated to
ensure the provision o' sa'e and adeDuate
nutrition 'or in'ants and youn) children by the
pro$otion, protection and support o'
breast'eedin) and by ensurin) the proper use
o' breast$ilk substitutes, breast$ilk
supple$ents and related products (hen these
are $edically indicated and only (hen
necessary, on the basis o' adeDuate
in'or$ation and throu)h appropriate $arketin)
and distribution.
Se)+&on 9@00A. E-oun) ChildE $eans a person
'ro$ the a)e o' $ore than t(elve 21!3 $onths
up to the a)e o' three 23 years 26 $onths3.
!. +he &ilk Code reco)nizes that in'ant 'or$ula $ay be a proper and possible substitute 'or breast$ilk in certain
instances= but the <:<< provides Ee9clusive breast'eedin) 'or in'ants 'ro$ 5-6 $onthsE and declares that Ethere is no
substitute nor replace$ent 'or breast$ilkE*
M$L; CO3E R$RR
WHEREAS, in order to ensure that sa'e and
adeDuate nutrition 'or in'ants is provided, there
is a need to protect and pro$ote breast'eedin)
and to in'or$ the public about the proper use o'
breast$ilk substitutes and supple$ents and
related products throu)h adeDuate, consistent
and ob>ective in'or$ation and appropriate
re)ulation o' the $arketin) and distribution o'
the said substitutes, supple$ents and related
products=
Se)+&on 5. 3e)8/+&on o0 6/&n)&*8e( O +he
'ollo(in) are the underlyin) principles 'ro$
(hich the revised rules and re)ulations are
pre$ised upon*
a. 79clusive breast'eedin) is 'or in'ants 'ro$ 5
to si9 263 $onths.
b. +here is no substitute or replace$ent 'or
breast$ilk.
. +he &ilk Code only re)ulates and does not i$pose unreasonable reDuire$ents 'or advertisin) and pro$otion=
<:<< i$poses an absolute ban on such activities 'or breast$ilk substitutes intended 'or in'ants 'ro$ 5-!4 $onths old
or beyond, and 'orbids the use o' health and nutritional clai$s. Section 1 o' the <:<<, (hich provides 'or a Etotal
e''ectE in the pro$otion o' products (ithin the scope o' the Code, is va)ue*
M$L; CO3E R$RR
SECT$ON 6. T'e Gene/8 6u48&) n!
Mo+'e/(. O
2a3 #o advertisin), pro$otion or other
$arketin) $aterials, (hether (ritten, audio or
visual, 'or products (ithin the scope o' this
Code shall be printed, published, distributed,
e9hibited and broadcast unless such $aterials
are duly authorized and approved by an inter-
a)ency co$$ittee created herein pursuant to
the applicable standards provided 'or in this
Code.
Se)+&on 5. 3e)8/+&on o0 6/&n)&*8e( O +he
'ollo(in) are the underlyin) principles 'ro$
(hich the revised rules and re)ulations are
pre$ised upon*
9 9 9 9
'. ;dvertisin), pro$otions, or sponsor-ships o'
in'ant 'or$ula, breast$ilk substitutes and other
related products are prohibited.
Se)+&on 11. 6/o'&4&+&on O #o advertisin),
pro$otions, sponsorships, or $arketin)
$aterials and activities 'or breast$ilk
substitutes intended 'or in'ants and youn)
children up to t(enty-'our 2!43 $onths, shall be
allo(ed, because they tend to convey or )ive
subli$inal $essa)es or i$pressions that
under$ine breast$ilk and breast'eedin) or
other(ise e9a))erate breast$ilk substitutes
andBor replace$ents, as (ell as related
products covered (ithin the scope o' this Code.
Se)+&on 13. ETo+8 E00e)+E - "ro$otion o'
products (ithin the scope o' this Code $ust be
ob>ective and should not eDuate or $ake the
product appear to be as )ood or eDual to
breast$ilk or breast'eedin) in the advertisin)
concept. :t $ust not in any case under$ine
breast$ilk or breast'eedin). +he Etotal e''ectE
should not directly or indirectly su))est that
buyin) their product (ould produce better
individuals, or resultin) in )reater love,
intelli)ence, ability, har$ony or in any $anner
brin) better health to the baby or other such
e9a))erated and unsubstantiated clai$.
Se)+&on 19. Con+en+ o0 M+e/&8(. - +he
'ollo(in) shall not be included in advertisin),
pro$otional and $arketin) $aterials*
a. +e9ts, pictures, illustrations or in'or$ation
(hich discoura)e or tend to under$ine the
bene'its or superiority o' breast'eedin) or (hich
idealize the use o' breast$ilk substitutes and
$ilk supple$ents. :n this connection, no
pictures o' babies and children to)ether (ith
their $others, 'athers, siblin)s, )randparents,
other relatives or care)ivers 2or yayas3 shall be
used in any advertise$ents 'or in'ant 'or$ula
and breast$ilk supple$ents=
b. +he ter$ Ehu$anized,E E$aternalized,E
Eclose to $other1s $ilkE or si$ilar (ords in
describin) breast$ilk substitutes or $ilk
supple$ents=
c. "ictures or te9ts that idealize the use o'
in'ant and $ilk 'or$ula.
Se)+&on 16. ;ll health and nutrition clai$s 'or
products (ithin the scope o' the Code are
absolutely prohibited. For this purpose, any
phrase or (ords that connotes to increase
e$otional, intellectual abilities o' the in'ant and
youn) child and other like phrases shall not be
allo(ed.
4. +he <:<< i$poses additional labelin) reDuire$ents not 'ound in the &ilk Code*
M$L; CO3E R$RR
SECT$ON 10. Con+&ne/(JL4e8. O
2a3 Containers andBor labels shall be desi)ned
to provide the necessary in'or$ation about the
appropriate use o' the products, and in such a
(ay as not to discoura)e breast'eedin).
2b3 7ach container shall have a clear,
conspicuous and easily readable and
understandable $essa)e in "ilipino or 7n)lish
printed on it, or on a label, (hich $essa)e can
not readily beco$e separated 'ro$ it, and
(hich shall include the 'ollo(in) points*
2i3 the (ords E:$portant #oticeE or their
eDuivalent=
2ii3 a state$ent o' the superiority o'
breast'eedin)=
2iii3 a state$ent that the product shall be used
only on the advice o' a health (orker as to the
need 'or its use and the proper $ethods o' use=
and
2iv3 instructions 'or appropriate preparation,
and a (arnin) a)ainst the health hazards o'
inappropriate preparation.
Se)+&on 26. Con+en+ O 7ach containerBlabel
shall contain such $essa)e, in both Filipino
and 7n)lish lan)ua)es, and (hich $essa)e
cannot be readily separated there'ro$, relative
the 'ollo(in) points*
2a3 +he (ords or phrase E:$portant #oticeE or
E@overn$ent Warnin)E or their eDuivalent=
2b3 ; state$ent o' the superiority o'
breast'eedin)=
2c3 ; state$ent that there is no substitute 'or
breast$ilk=
2d3 ; state$ent that the product shall be used
only on the advice o' a health (orker as to the
need 'or its use and the proper $ethods o' use=
2e3 :nstructions 'or appropriate prepara-tion,
and a (arnin) a)ainst the health hazards o'
inappropriate preparation= and
2'3 +he health hazards o' unnecessary or
i$proper use o' in'ant 'or$ula and other
related products includin) in'or$ation that
po(dered in'ant 'or$ula $ay contain
patho)enic $icroor)anis$s and $ust be
prepared and used appropriately.
/. +he &ilk Code allo(s disse$ination o' in'or$ation on in'ant 'or$ula to health pro'essionals= the <:<< totally
prohibits such activity*
M$L; CO3E R$RR
SECT$ON 7. He8+' C/e S,(+e.. O
2b3 #o 'acility o' the health care syste$ shall
be used 'or the purpose o' pro$otin) in'ant
'or$ula or other products (ithin the scope o'
this Code. +his Code does not, ho(ever,
preclude the disse$ination o' in'or$ation to
health pro'essionals as provided in Section
Se)+&on 22. #o $anu'acturer, distributor, or
representatives o' products covered by the
Code shall be allo(ed to conduct or be
involved in any activity on breast'eedin)
pro$otion, education and production o'
:n'or$ation, 7ducation and Co$$unication
2:7C3 $aterials on breast'eedin), holdin) o' or
participatin) as speakers in classes or
J2b3.
SECT$ON 2. He8+' Wo/De/(. -
2b3 :n'or$ation provided by $anu'acturers and
distributors to health pro'essionals re)ardin)
products (ithin the scope o' this Code shall be
restricted to scienti'ic and 'actual $atters and
such in'or$ation shall not i$ply or create a
belie' that bottle-'eedin) is eDuivalent or
superior to breast'eedin). :t shall also include
the in'or$ation speci'ied in Section /2b3.
se$inars 'or (o$en and children activities and
to avoid the use o' these venues to $arket
their brands or co$pany na$es.
SECT$ON 16. ;ll health and nutrition clai$s 'or
products (ithin the scope o' the Code are
absolutely prohibited. For this purpose, any
phrase or (ords that connotes to increase
e$otional, intellectual abilities o' the in'ant and
youn) child and other like phrases shall not be
allo(ed.
6. +he &ilk Code per$its $ilk $anu'acturers and distributors to e9tend assistance in research and continuin)
education o' health pro'essionals= <:<< absolutely 'orbids the sa$e.
0. +he &ilk Code re)ulates the )ivin) o' donations= <:<< absolutely prohibits it.
M$L; CO3E R$RR
SECT$ON 6. T'e Gene/8 6u48&) n!
Mo+'e/(. O
2'3 #othin) herein contained shall prevent
donations 'ro$ $anu'acturers and distributors
o' products (ithin the scope o' this Code upon
reDuest by or (ith the approval o' the &inistry
o' ,ealth.
Se)+&on 91. 3on+&on( W&+'&n +'e S)o*e o0
T'&( Co!e - Conations o' products, $aterials,
de'ined and covered under the &ilk Code and
these i$ple$entin) rules and re)ulations, shall
be strictly prohibited.
Se)+&on 92. O+'e/ 3on+&on( B, M&8D
Co.*n&e( No+ Co:e/e! 4, +'&( Co!e. -
Conations o' products, eDuip$ents, and the
like, not other(ise 'allin) (ithin the scope o'
this Code or these <ules, )iven by $ilk
co$panies and their a)ents, representatives,
(hether in kind or in cash, $ay only be
coursed throu)h the :nter ;)ency Co$$ittee
2:;C3, (hich shall deter$ine (hether such
donation be accepted or other(ise.
J. +he <:<< provides 'or ad$inistrative sanctions not i$posed by the &ilk Code.
M$L; CO3E R$RR
Se)+&on 56. A!.&n&(+/+&:e Sn)+&on(. O+he
'ollo(in) ad$inistrative sanctions shall be
i$posed upon any person, >uridical or natural,
'ound to have violated the provisions o' the
Code and its i$ple$entin) <ules and
<e)ulations*
a3 1
st
violation Q Warnin)=
b3 !
nd
violation Q ;d$inistrative 'ine o' a
$ini$u$ o' +en +housand 2"15,555.553 to
Fi'ty +housand 2"/5,555.553 "esos, dependin)
on the )ravity and e9tent o' the violation,
includin) the recall o' the o''endin) product=
c3
rd
violation Q ;d$inistrative Fine o' a
$ini$u$ o' Si9ty +housand 2"65,555.553 to
6ne ,undred Fi'ty +housand 2"1/5,555.553
"esos, dependin) on the )ravity and e9tent o'
the violation, and in addition thereto, the recall
o' the o''endin) product, and suspension o' the
Certi'icate o' "roduct <e)istration 2C"<3=
d3 4
th
violation Q;d$inistrative Fine o' a
$ini$u$ o' +(o ,undred +housand
2"!55,555.553 to Five ,undred 2"/55,555.553
+housand "esos, dependin) on the )ravity and
e9tent o' the violation= and in addition thereto,
the recall o' the product, revocation o' the
C"<, suspension o' the %icense to 6perate
2%+63 'or one year=
e3 /
th
and succeedin) repeated violations Q
;d$inistrative Fine o' 6ne &illion
2"1,555,555.553 "esos, the recall o' the
o''endin) product, cancellation o' the C"<,
revocation o' the %icense to 6perate 2%+63 o'
the co$pany concerned, includin) the
blacklistin) o' the co$pany to be 'urnished the
Cepart$ent o' 8ud)et and &ana)e$ent
2C8&3 and the Cepart$ent o' +rade and
:ndustry 2C+:3=
'3 ;n additional penalty o' +(o +hou-sand Five
,undred 2"!,/55.553 "esos per day shall be
$ade 'or every day the violation continues
a'ter havin) received the order 'ro$ the :;C or
other such appropriate body, noti'yin) and
penalizin) the co$pany 'or the in'raction.
For purposes o' deter$inin) (hether or not
there is ErepeatedE violation, each product
violation belon)in) or o(ned by a co$pany,
includin) those o' their subsidiaries, are
dee$ed to be violations o' the concerned $ilk
co$pany and shall not be based on the
speci'ic violatin) product alone.
9. +he <:<< provides 'or repeal o' e9istin) la(s to the contrary.
+he Court shall resolve the $erits o' the alle)ations o' petitioner seriatim.
1. "etitioner is $istaken in its clai$ that the &ilk Code1s covera)e is li$ited only to children 5-1! $onths old. Section o' the &ilk
Code states*
S7C+:6# . Scope of the ,ode Q +he Code applies to the $arketin), and practices related thereto, o' the 'ollo(in)
products* breast$ilk substitutes, includin) in'ant 'or$ula= other $ilk products, 'oods and bevera)es, includin) bottle-
'ed co$ple$entary 'oods, (hen $arketed or other(ise represented to be suitable, (ith or (ithout $odi'ication, 'or
use as a partial or total replace$ent o' breast$ilk= 'eedin) bottles and teats. :t also applies to their Duality and
availability, and to in'or$ation concernin) their use.
Clearly, the covera)e o' the &ilk Code is not dependent on the a)e o' the child but on the D&n! o0 */o!u)+ bein) $arketed to the
public. +he la( treats in'ant 'or$ula, bottle-'ed co$ple$entary 'ood, and breast$ilk substitute as separate and distinct product
cate)ories.
Section 42h3 o' the &ilk Code de'ines in'ant 'or$ula as Ea breast$ilk substitute 9 9 9 to satis'y the nor$al nutritional reDuire$ents o'
in'ants up to bet(een 'our to si9 $onths o' a)e, and adapted to their physiolo)ical characteristicsE= (hile under Section 42b3, bottle-
'ed co$ple$entary 'ood re'ers to Eany 'ood, (hether $anu'actured or locally prepared, suitable as a co$ple$ent to breast$ilk or
in'ant 'or$ula, (hen either beco$es insu''icient to satis'y the nutritional reDuire$ents o' the in'ant.E ;n in'ant under Section 42e3 is a
person 'allin) (ithin the a)e bracket 5-1! $onths. :t is the nourish$ent o' this )roup o' in'ants or children a)ed 5-1! $onths that is
sou)ht to be pro$oted and protected by the &ilk Code.
8ut there is another tar)et )roup. 8reast$ilk substitute is de'ined under Section 42a3 as Eany 'ood bein) $arketed or other(ise
presented as a partial or total replace$ent 'or breast$ilk, (hether or not suitable 'or that purpose.ET'&( (e)+&on )on(*&)uou(8,
8)D( /e0e/en)e +o n, */+&)u8/ -e--/ou* o0 )'&8!/en. Hen)e, +'e */o:&(&on o0 +'e M&8D Co!e )nno+ 4e )on(&!e/e!
eL)8u(&:e 0o/ )'&8!/en -e! 0-12 .on+'(. :n other (ords, breast$ilk substitutes $ay also be intended 'or youn) children $ore
than 1! $onths o' a)e. +here'ore, by re)ulatin) breast$ilk substitutes, the &ilk Code also intends to protect and pro$ote the
nourish$ent o' children $ore than 1! $onths old.
7vidently, as lon) as (hat is bein) $arketed 'alls (ithin the scope o' the &ilk Code as provided in Section , then it can be sub>ect to
re)ulation pursuant to said la(, even i' the product is to be used by children a)ed over 1! $onths.
+here is, there'ore, nothin) ob>ectionable (ith Sections !
4!
and /2''3
4
o' the <:<<.
!. :t is also incorrect 'or petitioner to say that the <:<<, unlike the &ilk Code, does not reco)nize that breast$ilk substitutes $ay be
a proper and possible substitute 'or breast$ilk.
+he entirety o' the <:<<, not $erely truncated portions thereo', $ust be considered and construed to)ether. ;s held in 4e Luna %.
0ascual,
44
EFtGhe particular (ords, clauses and phrases in the <ule should not be studied as detached and isolated e9pressions, but
the (hole and every part thereo' $ust be considered in 'i9in) the $eanin) o' any o' its parts and in order to produce a har$onious
(hole.E
Section 0 o' the <:<< provides that E(hen $edically indicated and only (hen necessary, +'e u(e o0 4/e(+.&8D (u4(+&+u+e( &(
*/o*e/ i' based on co$plete and updated in'or$ation.E Section J o' the <:<< also states that in'or$ation and educational $aterials
should include in'or$ation on the proper use o' in'ant 'or$ula (hen the use thereo' is needed.
,ence, +'e R$RR, Mu(+ 8&De +'e M&8D Co!e, 8(o /e)o-n&He( +'+ &n )e/+&n )(e(, +'e u(e o0 4/e(+.&8D (u4(+&+u+e( ., 4e
*/o*e/.
. +he Court shall ascertain the $erits o' alle)ations
4/
and 4
46
to)ether as they are interlinked (ith each other.
+o resolve the Duestion o' (hether the labelin) reDuire$ents and advertisin) re)ulations under the <:<< are valid, it is i$portant to
deal 'irst (ith the nature, purpose, and depth o' the re)ulatory po(ers o' the C6,, as de'ined in )eneral under the 19J0
;d$inistrative Code,
40
and as dele)ated in particular under the &ilk Code.
,ealth is a le)iti$ate sub>ect $atter 'or re)ulation by the C6, 2and certain other ad$inistrative a)encies3 in e9ercise o' police
po(ers dele)ated to it. +he sheer span o' >urisprudence on that $atter precludes the need to 'urther discuss it.
.4J
,o(ever, health
in'or$ation, particularly advertisin) $aterials on apparently non-to9ic products like breast$ilk substitutes and supple$ents, is a
relatively ne( area 'or re)ulation by the C6,.
49
;s early as the 1910 <evised ;d$inistrative Code o' the "hilippine :slands,
/5
health in'or$ation (as already (ithin the a$bit o' the
re)ulatory po(ers o' the predecessor o' C6,.
/1
Section 9J thereo' char)ed it (ith the duty to protect the health o' the people, and
vested it (ith such po(ers as E2)3 the disse$ination o' hy)ienic in'or$ation a$on) the people and especially the inculcation of
*no&ledge as to the proper care of infants and the $ethods o' preventin) and co$batin) dan)erous co$$unicable diseases.E
Seventy years later, the 19J0 ;d$inistrative Code tasked respondent C6, to carry out the state policy pronounced under Section
1/, ;rticle :: o' the 19J0 Constitution, (hich is Eto protect and pro$ote the ri)ht to health o' the people and instill health
consciousness a$on) the$.E
/!
+o that end, it (as )ranted under Section o' the ;d$inistrative Code the po(er to E263 propa)ate
health in'or$ation and educate the population on i$portant health, $edical and environ$ental $atters (hich have health
i$plications.E
/
When it co$es to in'or$ation re)ardin) nutrition o' in'ants and youn) children, ho(ever, the &ilk Code speci'ically dele)ated to the
&inistry o' ,ealth 2hereina'ter re'erred to as C6,3 the po(er to ensure that there is adeDuate, consistent and ob>ective in'or$ation
on breast'eedin) and use o' breast$ilk substitutes, supple$ents and related products= and the po(er to )on+/o8 such in'or$ation.
+hese are e9pressly provided 'or in Sections 1! and /2a3, to (it*
S7C+:6# 1!. 3mplementation and Monitoring Q
9 9 9 9
2b3 +he &inistry o' ,ealth shall be principally responsible 'or the i$ple$entation and en'orce$ent o' the provisions o'
this Code. For this purpose, the &inistry o' ,ealth shall have the 'ollo(in) po(ers and 'unctions*
213 +o pro$ul)ate such rules and re)ulations as are necessary or proper 'or the i$ple$entation o' this Code
and the acco$plish$ent o' its purposes and ob>ectives.
9 9 9 9
243 +o e9ercise such other po(ers and 'unctions as $ay be necessary 'or or incidental to the attain$ent o'
the purposes and ob>ectives o' this Code.
S7C+:6# /. 3nformation and Education Q
2a3 +he )overn$ent shall ensure that o4Me)+&:e n! )on(&(+en+ in'or$ation is provided on in'ant 'eedin), 'or use by
'a$ilies and those involved in the 'ield o' in'ant nutrition. +his responsibility shall cover the plannin), provision, desi)n
and disse$ination o' in'or$ation, and the control thereo', on in'ant nutrition. 27$phasis supplied3
Further, C6, is authorized by the &ilk Code to )on+/o8 the content o' any in'or$ation on breast$ilk %is-F-%isbreast$ilk substitutes,
supple$ent and related products, in the 'ollo(in) $anner*
S7C+:6# /. 9 9 9
2b3 :n'or$ational and educational $aterials, (hether (ritten, audio, or visual, dealin) (ith the 'eedin) o' in'ants and
intended to reach pre)nant (o$en and $others o' in'ants, shall include clear in'or$ation on all the 'ollo(in) points*
213 the bene'its and superiority o' breast'eedin)= 2!3 $aternal nutrition, and the preparation 'or and $aintenance o'
breast'eedin)= 23 the ne)ative e''ect on breast'eedin) o' introducin) partial bottle'eedin)= 243 the di''iculty o'
reversin) the decision not to breast'eed= and 2/3 (here needed, the proper use o' in'ant 'or$ula, (hether
$anu'actured industrially or ho$e-prepared. 2hen such materials contain information a/out the use of infant
formula, they shall include the social and financial implications of its use3 the health ha-ards of
inappropriate foods or feeding methods3 and, in particular, the health ha-ards of unnecessary or improper
use of infant formula and other /reastmil* su/stitutes. Such materials shall not use any picture or te!t &hich
may ideali-e the use of /reastmil* su/stitutes.
SE,53O9 <. )ealth *or(ers Z
9 9 9 9
2b3 :n'or$ation provided by $anu'acturers and distributors to health pro'essionals re)ardin) products (ithin the
scope o' this Code ('88 4e /e(+/&)+e! +o ()&en+&0&) n! 0)+u8 .++e/(, n! (u)' &n0o/.+&on ('88 no+ &.*8, o/
)/e+e 4e8&e0 +'+ 4o++8e0ee!&n- &( eKu&:8en+ o/ (u*e/&o/ +o 4/e(+0ee!&n-. $+ ('88 8(o &n)8u!e +'e
&n0o/.+&on (*e)&0&e! &n Se)+&on 9@4A.
SE,53O9 V. ,ontainers[Label Z
2a3 Containers andBor labels shall be desi)ned to provide the necessary in'or$ation about the appropriate use o' the
products, and &n (u)' B, ( no+ +o !&()ou/-e 4/e(+0ee!&n-.
9 9 9 9
2d3 +he ter$ Ehu$anized,E E$aternalizedE or si$ilar ter$s shall not be used. 27$phasis supplied3
+he C6, is also authorized to control the purpose o' the in'or$ation and to (ho$ such in'or$ation $ay be disse$inated under
Sections 6 throu)h 9 o' the &ilk Code
/4
to ensure that the in'or$ation that (ould reach pre)nant (o$en, $others o' in'ants, and
health pro'essionals and (orkers in the health care syste$ is restricted to scienti'ic and 'actual $atters and shall no+ i$ply or create
a belie' that bottle'eedin) is eDuivalent or superior to breast'eedin).
:t bears e$phasis, ho(ever, that the C6,1s po(er under the &ilk Code to )on+/o8 in'or$ation re)ardin) breast$ilk %is-a-
%is breast$ilk substitutes &( no+ 4(o8u+e as the po(er to control does not enco$pass the po(er to absolutely prohibit the
advertisin), $arketin), and pro$otion o' breast$ilk substitutes.
+he 'ollo(in) are the provisions o' the &ilk Code that uneDuivocally indicate that the control over in'or$ation )iven to the C6, is not
absolute and that absolute prohibition is not conte$plated by the Code*
a3 Section ! (hich reDuires adeDuate in'or$ation and appropriate $arketin) and distribution o' breast$ilk
substitutes, to (it*
S7C+:6# !. Aim of the ,ode Z +he ai$ o' the Code is to contribute to the provision o' sa'e and adeDuate
nutrition 'or in'ants by the protection and pro$otion o' breast'eedin) and by ensurin) the proper use o'
breast$ilk substitutes and breast$ilk supple$ents (hen these are necessary, on the basis o' adeDuate
in'or$ation and throu)h appropriate $arketin) and distribution.
b3 Section (hich speci'ically states that the Code applies to the $arketin) o' and practices related to breast$ilk
substitutes, includin) in'ant 'or$ula, and to in'or$ation concernin) their use=
c3 Section /2a3 (hich provides that the )overn$ent shall ensure that ob>ective and consistent in'or$ation is provided
on in'ant 'eedin)=
d3 Section /2b3 (hich provides that (ritten, audio or visual in'or$ational and educational $aterials shall not use any
picture or te9t (hich $ay idealize the use o' breast$ilk substitutes and should include in'or$ation on the health
hazards o' unnecessary or i$proper use o' said product=
e3 Section 62a3 in relation to Section 1!2a3 (hich creates and e$po(ers the :;C to revie( and e9a$ine advertisin),
pro$otion, and other $arketin) $aterials=
'3 Section J2b3 (hich states that $ilk co$panies $ay provide in'or$ation to health pro'essionals but such in'or$ation
should be restricted to 'actual and scienti'ic $atters and shall not i$ply or create a belie' that bottle'eedin) is
eDuivalent or superior to breast'eedin)= and
)3 Section 15 (hich provides that containers or labels should not contain in'or$ation that (ould discoura)e
breast'eedin) and idealize the use o' in'ant 'or$ula.
:t is in this conte9t that the Court no( e9a$ines the assailed provisions o' the <:<< re)ardin) labelin) and advertisin).
Sections 1
//
on Etotal e''ectE and !6
/6
o' <ule ?:: o' the <:<< contain so$e labelin) reDuire$ents, speci'ically* a3 that there be a
state$ent that there is no substitute to breast$ilk= and b3 that there be a state$ent that po(dered in'ant 'or$ula $ay contain
patho)enic $icroor)anis$s and $ust be prepared and used appropriately. Section 16
/0
o' the <:<< prohibits all health and nutrition
clai$s 'or products (ithin the scope o' the &ilk Code, such as clai$s o' increased e$otional and intellectual abilities o' the in'ant
and youn) child.
+hese reDuire$ents and li$itations are consistent (ith the provisions o' Section J o' the &ilk Code, to (it*
S7C+:6# J. )ealth wor(ers -
9 9 9 9
2b3 :n'or$ation provided by $anu'acturers and distributors to health pro'essionals re)ardin) products (ithin the
scope o' this Code shall be /e(+/&)+e! +o ()&en+&0&) n! 0)+u8 .++e/(, and such in'or$ation ('88 no+ i$ply or
create a belie' that bottle'eedin) is e4uivalent or (u*e/&o/ to breast'eedin). :t shall also include the in'or$ation
speci'ied in Section /.
/J
27$phasis supplied3
and Section 152d3
/9
(hich bars the use on containers and labels o' the ter$s Ehu$anized,E E$aternalized,E or si$ilar ter$s.
+hese provisions o' the &ilk Code e9pressly 'orbid in'or$ation that (ould i$ply or create a belie' that there is any $ilk product
eDuivalent to breast$ilk or (hich is hu$anized or $aternalized, as such in'or$ation (ould be inconsistent (ith the superiority o'
breast'eedin).
:t $ay be ar)ued that Section J o' the &ilk Code re'ers only to in'or$ation )iven to health (orkers re)ardin) breast$ilk substitutes,
not to containers and labels thereo'. ,o(ever, such restrictive application o' Section J2b3 (ill result in the absurd situation in (hich
$ilk co$panies and distributors are 'orbidden to clai$ to health (orkers that their products are substitutes or eDuivalents o'
breast$ilk, and yet be allo(ed to display on the containers and labels o' their products the e9act opposite $essa)e. +hat aske(ed
interpretation o' the &ilk Code is precisely (hat Section /2a3 thereo' seeks to avoid by $andatin) that all in'or$ation re)ardin)
breast$ilk %is-a-%is breast$ilk substitutes be consistent, at the sa$e ti$e )ivin) the )overn$ent control over plannin), provision,
desi)n, and disse$ination o' in'or$ation on in'ant 'eedin).
+hus, Section !62c3 o' the <:<< (hich reDuires containers and labels to state that the product o''ered is not a substitute 'or
breast$ilk, is a reasonable $eans o' en'orcin) Section J2b3 o' the &ilk Code and deterrin) circu$vention o' the protection and
pro$otion o' breast'eedin) as e$bodied in Section !
65
o' the &ilk Code.
Section !62'3
61
o' the <:<< is an eDually reasonable labelin) reDuire$ent. :t i$ple$ents Section /2b3 o' the &ilk Code (hich reads*
S7C+:6# /. 9 9 9
9 9 9 9
2b3 :n'or$ational and educational $aterials, (hether (ritten, audio, or visual, dealin) (ith the 'eedin) o' in'ants and
intended to reach pre)nant (o$en and $others o' in'ants, shall include clear in'or$ation on all the 'ollo(in) points* 9
9 9 2/3 (here needed, the proper use o' in'ant 'or$ula, (hether $anu'actured industrially or ho$e-prepared. When
such $aterials contain in'or$ation about the use o' in'ant 'or$ula, they shall include the social and 'inancial
i$plications o' its use= the health ha-ards of inappropriate foods or feeding methods3 and, in particular, the
health ha-ards of unnecessary or improper use of infant formula and other /reastmil* su/stitutes. Such
$aterials shall not use any picture or te9t (hich $ay idealize the use o' breast$ilk substitutes. 27$phasis supplied3
+he label o' a product contains &n0o/.+&on about said product intended 'or the buyers thereo'. +he buyers o' breast$ilk substitutes
are $others o' in'ants, and Section !6 o' the <:<< $erely adds a 'air (arnin) about the likelihood o' patho)enic $icroor)anis$s
bein) present in in'ant 'or$ula and other related products (hen these are prepared and used inappropriately.
"etitionerPs counsel has ad$itted durin) the hearin) on June 19, !550 that 'or$ula $ilk is prone to conta$inations and there is as
yet no technolo)y that allo(s production o' po(dered in'ant 'or$ula that eli$inates all 'or$s o' conta$ination.
6!
:neluctably, the reDuire$ent under Section !62'3 o' the <:<< 'or the label to contain the $essa)e re)ardin) health hazards includin)
the possibility o' conta$ination (ith patho)enic $icroor)anis$s is in accordance (ith Section /2b3 o' the &ilk Code.
+he authority o' C6, to control in'or$ation re)ardin) breast$ilk %is-a-%is breast$ilk substitutes and supple$ents and related
products cannot be Duestioned. :t is its intervention into the area o' advertisin), pro$otion, and $arketin) that is bein) assailed by
petitioner.
:n 'urtherance o' Section 62a3 o' the &ilk Code, to (it*
S7C+:6# 6. 5he General 0ublic and Mothers. Q
2a3 #o advertisin), pro$otion or other $arketin) $aterials, (hether (ritten, audio or visual, 'or products (ithin the
scope o' this Code shall be printed, published, distributed, e9hibited and broadcast unless such $aterials are duly
authorized and approved by an inter-a)ency co$$ittee created herein pursuant to the applicable standards provided
'or in this Code.
the &ilk Code invested re)ulatory authority over advertisin), pro$otional and $arketin) $aterials to an :;C, thus*
S7C+:6# 1!. 3mplementation and Monitoring -
2a3 For purposes o' Section 62a3 o' this Code, an inter-a)ency co$$ittee co$posed o' the 'ollo(in) $e$bers is
hereby created*
&inister o' ,ealth ------------------- Chair$an
&inister o' +rade and :ndustry ------------------- &e$ber
&inister o' Justice ------------------- &e$ber
&inister o' Social Services and Cevelop$ent ------------------- &e$ber
+he $e$bers $ay desi)nate their duly authorized representative to every $eetin) o' the Co$$ittee.
+he Co$$ittee shall have the 'ollo(in) po(ers and 'unctions*
213 +o revie( and e9a$ine all advertisin). pro$otion or other $arketin) $aterials, (hether (ritten, audio or
visual, on products (ithin the scope o' this Code=
2!3 +o approve or disapprove, delete ob>ectionable portions 'ro$ and prohibit the printin), publication,
distribution, e9hibition and broadcast o', all advertisin) pro$otion or other $arketin) $aterials, (hether
(ritten, audio or visual, on products (ithin the scope o' this Code=
23 +o prescribe the internal and operational procedure 'or the e9ercise o' its po(ers and 'unctions as (ell as
the per'or$ance o' its duties and responsibilities= and
243 To */o.u8-+e (u)' /u8e( n! /e-u8+&on( ( /e ne)e((/, o/ */o*e/ 0o/ +'e &.*8e.en++&on o0
Se)+&on 6@A o0 +'&( Co!e. 9 9 9 27$phasis supplied3
,o(ever, Section 11 o' the <:<<, to (it*
S7C+:6# 11. 0rohibition O #o advertisin), pro$otions, sponsorships, or $arketin) $aterials and activities 'or
breast$ilk substitutes intended 'or in'ants and youn) children up to t(enty-'our 2!43 $onths, shall be allo(ed,
because they tend to convey or )ive subli$inal $essa)es or i$pressions that under$ine breast$ilk and
breast'eedin) or other(ise e9a))erate breast$ilk substitutes andBor replace$ents, as (ell as related products
covered (ithin the scope o' this Code.
prohibits advertisin), pro$otions, sponsorships or $arketin) $aterials and activities 'or breast$ilk substitutes in line (ith the <:<<Ps
declaration o' principle under Section 42'3, to (it*
S7C+:6# 4. 4eclaration of 0rinciples Z
9 9 9 9
2'3 ;dvertisin), pro$otions, or sponsorships o' in'ant 'or$ula, breast$ilk substitutes and other related products are
prohibited.
+he C6,, throu)h its co-respondents, evidently arro)ated to itsel' not only the re)ulatory authority )iven to the :;C but also i$posed
absolute prohibition on advertisin), pro$otion, and $arketin).
-et, oddly enou)h, Section 1! o' the <:<< reiterated the reDuire$ent o' the &ilk Code in Section 6 thereo' 'or prior approval by :;C
o' all advertisin), $arketin) and pro$otional $aterials prior to disse$ination.
7ven respondents, throu)h the 6S@, ackno(led)ed the authority o' :;C, and repeatedly insisted, durin) the oral ar)u$ents on June
19, !550, that the prohibition under Section 11 is not actually operational, %iz*
S6%:C:+6< @7#7<;% C7?;#;C7<;*
9 9 9 9
9 9 9 #o(, the cru9 o' the $atter that is bein) Duestioned by "etitioner is (hether or not there is an absolute
prohibition on advertisin) $akin) ;6 !556-1! unconstitutional. We $aintained that (hat ;6 !556-1! provides is not
an absolute prohibition because Section 11 (hile it states and it is entitled prohibition it states that no advertisin),
pro$otion, sponsorship or $arketin) $aterials and activities 'or breast $ilk substitutes intended 'or in'ants and
youn) children up to !4 $onths shall be allo(ed because this is the standard they tend to convey or )ive subli$inal
$essa)es or i$pression under$ine that breast$ilk or breast'eedin) 9 9 9.
We have to read Section 11 to)ether (ith the other Sections because the other Section, Section 1!, provides 'or the
inter a)ency co$$ittee that is e$po(ered to process and evaluate all the advertisin) and pro$otion $aterials.
9 9 9 9
What ;6 !556-1!, (hat it does, it does not prohibit the sale and $anu'acture, it si$ply re)ulates the advertise$ent
and the pro$otions o' breast'eedin) $ilk substitutes.
9 9 9 9
#o(, the prohibition on advertisin), -our ,onor, $ust be taken to)ether (ith the provision on the :nter-;)ency
Co$$ittee that processes and evaluates because there $ay be so$e in'or$ation disse$ination that are strai)ht
'or(ard in'or$ation disse$ination. What the ;6 !556 is tryin) to prevent is any $aterial that (ill under$ine the
practice o' breast'eedin), -our ,onor.
9 9 9 9
;SS6C:;+7 JAS+:C7 S;#+:;@6*
&ada$ Solicitor @eneral, under the &ilk Code, (hich body has authority or po(er to pro$ul)ate <ules and
<e)ulations re)ardin) the ;dvertisin), "ro$otion and &arketin) o' 8reast$ilk SubstitutesI
S6%:C:+6< @7#7<;% C7?;#;C7<;*
-our ,onor, please, it is provided that the :nter-;)ency Co$$ittee, -our ,onor.
9 9 9 9
;SS6C:;+7 JAS+:C7 S;#+:;@6*
9 9 9 Con1t you think that the Cepart$ent o' ,ealth overstepped its rule $akin) authority (hen it totally banned
advertisin) and pro$otion under Section 11 prescribed the total e''ect rule as (ell as the content o' $aterials under
Section 1 and 1/ o' the rules and re)ulationsI
S6%:C:+6< @7#7<;% C7?;#;C7<;*
-our ,onor, please, 'irst (e (ould like to stress that there is no total absolute ban. Second, the :nter-;)ency
Co$$ittee is under the Cepart$ent o' ,ealth, -our ,onor.
9 9 9 9
;SS6C:;+7 JAS+:C7 #;R;<:6*
9 9 9 Cid : hear you correctly, &ada$ Solicitor, that there is no absolute ban on advertisin) o' breast$ilk substitutes
in the <evised <ulesI
S6%:C:+6< @7#7<;% C7?;#;C7<;*
-es, your ,onor.
;SS6C:;+7 JAS+:C7 #;R;<:6*
8ut, (ould you nevertheless a)ree that there is an absolute ban on advertisin) o' breast$ilk substitutes intended 'or
children t(o 2!3 years old and youn)erI
S6%:C:+6< @7#7<;% C7?;#;C7<;*
:t1s not an absolute ban, -our ,onor, because (e have the :nter-;)ency Co$$ittee that can evaluate so$e
advertisin) and pro$otional $aterials, sub>ect to the standards that (e have stated earlier, (hich are- they should
not under$ine breast'eedin), -our ,onor.
9 9 9 9
9 9 9 Section 11, (hile it is titled "rohibition, it $ust be taken in relation (ith the other Sections, particularly 1! and 1
and 1/, -our ,onor, because it is reco)nized that the :nter-;)ency Co$$ittee has that po(er to evaluate
pro$otional $aterials, -our ,onor.
;SS6C:;+7 JAS+:C7 #;R;<:6*
So in short, (ill you please clari'y there1s no absolute ban on advertise$ent re)ardin) $ilk substitute re)ardin)
in'ants t(o 2!3 years belo(I
S6%:C:+6< @7#7<;% C7?;#;C7<;*
We can proudly say that the )eneral rule is that there is a prohibition, ho(ever, (e take e9ceptions and standards
have been set. 6ne o' (hich is that, the :nter-;)ency Co$$ittee can allo( i' the advertisin) and pro$otions (ill not
under$ine breast$ilk and breast'eedin), -our ,onor.
6
Sections 11 and 42'3 o' the <:<< are clearly violative o' the &ilk Code.
,o(ever, althou)h it is the :;C (hich is authorized to pro$ul)ate rules and re)ulations 'or the approval or re>ection o' advertisin),
pro$otional, or other $arketin) $aterials under Section 1!2a3 o' the &ilk Code, said provision $ust be related to Section 6 thereo'
(hich in turn provides that the rules and re)ulations $ust be Epursuant to the applicable standards provided 'or in this Code.E Said
standards are set 'orth in Sections /2b3, J2b3, and 15 o' the Code, (hich, at the risk o' bein) repetitious, and 'or easy re'erence, are
Duoted hereunder*
S7C+:6# /. 3nformation and Education Z
9 9 9 9
2b3 :n'or$ational and educational $aterials, (hether (ritten, audio, or visual, dealin) (ith the 'eedin) o' in'ants and
intended to reach pre)nant (o$en and $others o' in'ants, shall include clear in'or$ation on all the 'ollo(in) points*
213 the bene'its and superiority o' breast'eedin)= 2!3 $aternal nutrition, and the preparation 'or and $aintenance o'
breast'eedin)= 23 the ne)ative e''ect on breast'eedin) o' introducin) partial bottle'eedin)= 243 the di''iculty o'
reversin) the decision not to breast'eed= and 2/3 (here needed, the proper use o' in'ant 'or$ula, (hether
$anu'actured industrially or ho$e-prepared. When such $aterials contain in'or$ation about the use o' in'ant
'or$ula, they shall include the social and 'inancial i$plications o' its use= the health hazards o' inappropriate 'oods o'
'eedin) $ethods= and, in particular, the health hazards o' unnecessary or i$proper use o' in'ant 'or$ula and other
breast$ilk substitutes. Such $aterials shall not use any picture or te9t (hich $ay idealize the use o' breast$ilk
substitutes.
9 9 9 9
S7C+:6# J. )ealth *or(ers. Q
9 9 9 9
2b3 :n'or$ation provided by $anu'acturers and distributors to health pro'essionals re)ardin) products (ithin the
scope o' this Code shall be restricted to scienti'ic and 'actual $atters and such in'or$ation shall not i$ply or create a
belie' that bottle 'eedin) is eDuivalent or superior to breast'eedin). :t shall also include the in'or$ation speci'ied in
Section /2b3.
9 9 9 9
S7C+:6# 15. ,ontainers[Label 5
2a3 Containers andBor labels shall be desi)ned to provide the necessary in'or$ation about the appropriate use o' the
products, and in such a (ay as not to discoura)e breast'eedin).
2b3 7ach container shall have a clear, conspicuous and easily readable and understandable $essa)e in "ilipino or
7n)lish printed on it, or on a label, (hich $essa)e can not readily beco$e separated 'ro$ it, and (hich shall include
the 'ollo(in) points*
2i3 the (ords E:$portant #oticeE or their eDuivalent=
2ii3 a state$ent o' the superiority o' breast'eedin)=
2iii3 a state$ent that the product shall be used only on the advice o' a health (orker as to the need 'or its use
and the proper $ethods o' use= and
2iv3 instructions 'or appropriate preparation, and a (arnin) a)ainst the health hazards o' inappropriate
preparation.
Section 1!2b3 o' the &ilk Code desi)nates the C6, as the principal i$ple$entin) a)ency 'or the en'orce$ent o' the provisions o' the
Code. :n relation to such responsibility o' the C6,, Section /2a3 o' the &ilk Code states that*
S7C+:6# /. 3nformation and Education Z
2a3 +he )overn$ent shall ensure that o4Me)+&:e n! )on(&(+en+ in'or$ation is provided on in'ant 'eedin), 'or use by
'a$ilies and those involved in the 'ield o' in'ant nutrition. +his responsibility shall cover the plannin), provision, desi)n
and disse$ination o' in'or$ation, and the control thereo', on in'ant nutrition. 27$phasis supplied3
+hus, +'e 3OH '( +'e (&-n&0&)n+ /e(*on(&4&8&+, +o +/n(8+e &n+o o*e/+&on8 +e/.( +'e (+n!/!( (e+ 0o/+' &n Se)+&on( 9, 2,
n! 10 o0 +'e M&8D Co!e, 4, B'&)' +'e $AC ('88 ()/een !:e/+&(&n-, */o.o+&on8, o/ o+'e/ ./De+&n- .+e/&8(.
:t is pursuant to such responsibility that the C6, correctly provided 'or Section 1 in the <:<< (hich reads as 'ollo(s*
S7C+:6# 1. E5otal EffectE - "ro$otion o' products (ithin the scope o' this Code $ust be ob>ective and should not
eDuate or $ake the product appear to be as )ood or eDual to breast$ilk or breast'eedin) in the advertisin) concept.
:t $ust not in any case under$ine breast$ilk or breast'eedin). +he Etotal e''ectE should not directly or indirectly
su))est that buyin) their product (ould produce better individuals, or resultin) in )reater love, intelli)ence, ability,
har$ony or in any $anner brin) better health to the baby or other such e9a))erated and unsubstantiated clai$.
Such standards bind the :;C in 'or$ulatin) its rules and re)ulations on advertisin), pro$otion, and $arketin). +hrou)h that sin)le
provision, the C6, e9ercises control over the in'or$ation content o' advertisin), pro$otional and $arketin) $aterials on
breast$ilk %is-a-%is breast$ilk substitutes, supple$ents and other related products. :t also sets a viable standard a)ainst (hich the
:;C $ay screen such $aterials be'ore they are $ade public.
:n E&ui-Asia 0lacement- 3nc. %s. 4epartment of Foreign Affairs,
64
the Court held*
9 9 9 F+Ghis Court had, in the past, accepted as su''icient standards the 'ollo(in)* Epublic interest,E E>ustice and eDuity,E
Epublic convenience and (el'are,E and Esi$plicity, econo$y and (el'are.E
6/
:n this case, correct in'or$ation as to in'ant 'eedin) and nutrition is in'used (ith public interest and (el'are.
4. With re)ard to activities 'or disse$ination o' in'or$ation to health pro'essionals, the Court also 'inds that there is no inconsistency
bet(een the provisions o' the &ilk Code and the <:<<. Section 02b3
66
o' the &ilk Code, in relation to Section J2b3
60
o' the sa$e Code,
allo(s disse$ination o' in'or$ation to health pro'essionals but such&n0o/.+&on &( /e(+/&)+e! +o ()&en+&0&) n! 0)+u8 .++e/(.
Contrary to petitioner1s clai$, Section !! o' the <:<< does not prohibit the -&:&n- o0 &n0o/.+&on +o 'e8+' */o0e((&on8( on
()&en+&0&) n! 0)+u8 .++e/(. What it prohibits is the involve$ent o' the $anu'acturer and distributor o' the products covered by
the Code in activities 'or the pro$otion, education and production o' :n'or$ation, 7ducation and Co$$unication 2:7C3 $aterials
re)ardin) breast'eedin) that are &n+en!e! 0o/Bo.en n! )'&8!/en. Said provision cannot be construed to enco$pass even
the !&((e.&n+&on o0 &n0o/.+&on +o 'e8+' */o0e((&on8(, ( /e(+/&)+e! by the &ilk Code.
/. #e9t, petitioner alle)es that Section J2e3
6J
o' the &ilk Code per$its $ilk $anu'acturers and distributors to e9tend assistance in
research and in the continuin) education o' health pro'essionals, (hile Sections !! and ! o' the <:<< absolutely 'orbid the sa$e.
"etitioner also assails Section 42i3
69
o' the <:<< prohibitin) $ilk $anu'acturers1 and distributors1 participation in any policy$akin)
body in relation to the advance$ent o' breast'eedin).
Section 42i3 o' the <:<< provides that $ilk co$panies and their representatives should not 'or$ part o' any policy$akin) body or
entity in relation to the advance$ent o' breast'eedin). +he Court 'inds nothin) in said provisions (hich contravenes the &ilk Code.
#ote that under Section 1!2b3 o' the &ilk Code, it is +'e 3OH B'&)' ('88 4e */&n)&*88, /e(*on(&48e 'or the i$ple$entation and
en'orce$ent o' the provisions o' said Code. :t is entirely up to the C6, to decide (hich entities to call upon or allo( to be part o'
policy$akin) bodies on breast'eedin). +here'ore, the <:<<1s prohibition on $ilk co$paniesP participation in any policy$akin) body
in relation to the advance$ent o' breast'eedin) is in accord (ith the &ilk Code.
"etitioner is also $istaken in ar)uin) that Section !! o' the <:<< prohibits $ilk co$panies 'ro$ )ivin) reasearch assistance and
continuin) education to health pro'essionals. Se)+&on 22
05
o0 +'e R$RR !oe( no+ *e/+&n +o /e(e/)' ((&(+n)e +o o/ +'e
)on+&nu&n- e!u)+&on o0 'e8+' */o0e((&on8(= rather, it deals (ith breast'eedin) pro$otion and e!u)+&on 0o/ Bo.en n!
)'&8!/en. #othin) in Section !! o' the <:<< prohibits $ilk co$panies 'ro$ )ivin) assistance 'or research or continuin) education to
health pro'essionals= hence, petitioner1s ar)u$ent a)ainst this particular provision $ust be struck do(n.
:t is Sections 9
01
and 15
0!
o' the <:<< (hich )overn research assistance. Said sections o' the <:<< provide that/e(e/)'
((&(+n)e 0o/ 'e8+' Bo/De/( n! /e(e/)'e/( ., 4e 88oBe! u*on **/o:8 o0 n e+'&)( )o..&++ee, n! B&+' )e/+&n
!&()8o(u/e /eKu&/e.en+( &.*o(e! on +'e .&8D )o.*n, n! on +'e /e)&*&en+ o0 +'e /e(e/)' B/!.
+he &ilk Code endo(s the C6, (ith the po(er to deter$ine ho( such research or educational assistance $ay be )iven by $ilk
co$panies or under (hat conditions health (orkers $ay accept the assistance. +hus, Sections 9 and 15 o' the <:<< i$posin)
li$itations on the kind o' research done or e9tent o' assistance )iven by $ilk co$panies are co$pletely in accord (ith the &ilk Code.
"etitioner co$plains that Section !
0
o' the <:<< prohibits $ilk co$panies 'ro$ )ivin) assistance, support, lo)istics or trainin) to
health (orkers. +his provision is (ithin the prero)ative )iven to the C6, under Section J2e3
04
o' the &ilk Code, (hich provides that
$anu'acturers and distributors o' breast$ilk substitutes $ay assist in researches, scholarships and the continuin) education, o'
health pro'essionals in accordance (ith the rules and re)ulations pro$ul)ated by the &inistry o' ,ealth, no( C6,.
6. ;s to the <:<<1s prohibition on donations, said provisions are also consistent (ith the &ilk Code. Section 62'3 o' the &ilk Code
provides that donations ., be $ade by $anu'acturers and distributors o' breast$ilk substitutesu*on +'e /eKue(+ o/ B&+' +'e
**/o:8 o0 +'e 3OH. +he la( does not proscribe the re'usal o' donations. +he &ilk Code leaves it purely to the discretion o' the
C6, (hether to reDuest or accept such donations. +he C6, then appropriately e9ercised its discretion throu)h Section /1
0/
o' the
<:<< (hich sets 'orth its policy not to reDuest or approve donations 'ro$ $anu'acturers and distributors o' breast$ilk substitutes.
:t (as (ithin the discretion o' the C6, (hen it provided in Section /! o' the <:<< that any donation 'ro$ $ilk co$panies not
covered by the Code should be coursed throu)h the :;C (hich shall deter$ine (hether such donation should be accepted or
re'used. ;s reasoned out by respondents, the C6, is not $andated by the &ilk Code to accept donations. For that $atter, no
person or entity can be 'orced to accept a donation. +here is, there'ore, no real inconsistency bet(een the <:<< and the la(
because the &ilk Code does not prohibit the C6, 'ro$ re'usin) donations.
0. With re)ard to Section 46 o' the <:<< providin) 'or ad$inistrative sanctions that are not 'ound in the &ilk Code, the Court upholds
petitioner1s ob>ection thereto.
<espondent1s reliance on ,i%il Aeronautics /oard %. 0hilippine Air Lines- 3nc.
06
is $isplaced. +he )larin) di''erence in said case and
the present case be'ore the Court is that, in the ,i%il Aeronautics /oard, the Civil ;eronautics ;d$inistration 2C;;3 (as eL*/e((8,
-/n+e! 4, +'e 8B @R.A. No. 776A +'e *oBe/ to i$pose 'ines and civil penalties, (hile the Civil ;eronautics 8oard 2C;83 (as
)ranted by the sa$e la( the po(er to revie( on appeal the order or decision o' the C;; and to deter$ine (hether to i$pose, re$it,
$iti)ate, increase or co$pro$ise such 'ine and civil penalties. +hus, the Court upheld the C;81s <esolution i$posin) ad$inistrative
'ines.
:n a $ore recent case, 0erez %. L0G +efillers Association of the 0hilippines- 3nc.,
00
the Court upheld the Cepart$ent o' 7ner)y 2C673
Circular #o. !555-56-15 i$ple$entin) /atas 0ambansa 28.".3 /lg. . +he circular provided 'or 'ines 'or the co$$ission o'
prohibited acts. +he Court 'ound that nothin) in the circular contravened the la( because the C67 (as e9pressly authorized by
8.". /lg. and <.;. #o. 06J to i$pose 'ines or penalties.
:n the present case, neither the &ilk Code nor the <evised ;d$inistrative Code )rants the C6, the authority to 'i9 or i$pose
ad$inistrative 'ines. +hus, (ithout any e9press )rant o' po(er to 'i9 or i$pose such 'ines, the C6, cannot provide 'or those 'ines in
the <:<<. :n this re)ard, the C6, a)ain e9ceeded its authority by providin) 'or such 'ines or sanctions in Section 46 o' the <:<<.
Said provision is, there'ore, null and void.
+he C6, is not le't (ithout any $eans to en'orce its rules and re)ulations. Section 1!2b3 23 o' the &ilk Code authorizes the C6, to
Ecause the prosecution o' the violators o' this Code and other pertinent la(s on products covered by this Code.E Section 1 o' the
&ilk Code provides 'or the penalties to be i$posed on violators o' the provision o' the &ilk Code or the rules and re)ulations issued
pursuant to it, to (it*
S7C+:6# 1. Sanctions Z
2a3 ;ny person (ho violates the provisions o' this Code o/ +'e /u8e( n! /e-u8+&on( &((ue! *u/(un+ +o +'&(
Co!e shall, upon conviction, be punished by a penalty o' t(o 2!3 $onths to one 213 year i$prison$ent or a 'ine o' not
less than 6ne +housand "esos 2"1,555.553 nor $ore than +hirty +housand "esos 2"5,555.553 or both. Should the
o''ense be co$$itted by a >uridical person, the chair$an o' the 8oard o' Cirectors, the president, )eneral $ana)er,
or the partners andBor the persons directly responsible there'or, shall be penalized.
2b3 ;ny license, per$it or authority issued by any )overn$ent a)ency to any health (orker, distributor, $anu'acturer,
or $arketin) 'ir$ or personnel 'or the practice o' their pro'ession or occupation, or 'or the pursuit o' their business,
$ay, upon reco$$endation o' the &inistry o' ,ealth, be suspended or revoked in the event o' repeated violations o'
this Code, or o' the rules and re)ulations issued pursuant to this Code. 27$phasis supplied3
J. "etitionerPs clai$ that Section /0 o' the <:<< repeals e9istin) la(s that are contrary to the <:<< is 'rivolous.
Section /0 reads*
S7C+:6# /0. +epealing ,lause - ;ll orders, issuances, and rules and re)ulations or parts thereo' inconsistent (ith
these revised rules and i$ple$entin) re)ulations are hereby repealed or $odi'ied accordin)ly.
Section /0 o' the <:<< does not provide 'or the repeal o' la(s but only orders, issuances and rules and re)ulations. +hus, said
provision is valid as it is (ithin the C6,1s rule-$akin) po(er.
;n ad$inistrative a)ency like respondent possesses Duasi-le)islative or rule-$akin) po(er or the po(er to $ake rules and
re)ulations (hich results in dele)ated le)islation that is (ithin the con'ines o' the )rantin) statute and the Constitution, and sub>ect to
the doctrine o' non-dele)ability and separability o' po(ers.
0J
Such e9press )rant o' rule-$akin) po(er necessarily includes the po(er
to a$end, revise, alter, or repeal the sa$e.
09
+his is to allo( ad$inistrative a)encies 'le9ibility in 'or$ulatin) and ad>ustin) the details
and $anner by (hich they are to i$ple$ent the provisions o' a la(,
J5
in order to $ake it $ore responsive to the ti$es. ,ence, it is a
standard provision in ad$inistrative rules that prior issuances o' ad$inistrative a)encies that are inconsistent there(ith are declared
repealed or $odi'ied.
:n 'ine, only Sections 42'3, 11 and 46 are ultra %ires, beyond the authority o' the C6, to pro$ul)ate and in contravention o' the &ilk
Code and, there'ore, null and void. +he rest o' the provisions o' the <:<< are in consonance (ith the &ilk Code.
%astly, petitioner $akes a Ecatch-allE alle)ation that*
9 9 9 F+Ghe Duestioned <:<< sou)ht to be i$ple$ented by the <espondents is unne)e((/, n! o**/e((&:e, n! &(
o00en(&:e +o +'e !ue */o)e(( )8u(e o0 +'e Con(+&+u+&on, &n(o0/ ( +'e (.e &( &n /e(+/&n+ o0 +/!e and
because a provision therein is inadeDuate to provide the public (ith a co$prehensible basis to deter$ine (hether or
not they have co$$itted a violation.
J1
27$phasis supplied3
"etitioner re'ers to Sections 42'3,
J!
42i3,
J
/2(3,
J4
11,
J/
!!,
J6
!,
J0
46,
JJ
and /!
J9
as the provisions that suppress the trade o' $ilk and,
thus, violate the due process clause o' the Constitution.
+he 'ra$ers o' the constitution (ere (ell a(are that trade $ust be sub>ected to so$e 'or$ o' re)ulation 'or the public )ood. "ublic
interest $ust be upheld over business interests.
95
:n 0est Management Association of the 0hilippines %. Fertilizer and 0esticide
Authorit',
91
it (as held thus*
9 9 9 Further$ore, as held in ;ssociation o' "hilippine Coconut Cesiccators v. "hilippine Coconut ;uthority,!e(*&+e
+'e 0)+ +'+ Eou/ */e(en+ Con(+&+u+&on en('/&ne( 0/ee en+e/*/&(e ( *o8&),, &+ none+'e8e(( /e(e/:e( +o +'e
-o:e/n.en+ +'e *oBe/ +o &n+e/:ene B'ene:e/ ne)e((/, +o */o.o+e +'e -ene/8 Be80/e.E +here can be no
Duestion that the unre)ulated use or proli'eration o' pesticides (ould be hazardous to our environ$ent. +hus, in the
a'orecited case, the Court declared that E0/ee en+e/*/&(e !oe( no+ )88 0o/ /e.o:8 o0 P*/o+e)+&:e /e-u8+&on(Q.E 9 9
9 $+ .u(+ 4e )8e/8, eL*8&ne! n! */o:en 4, )o.*e+en+ e:&!en)e Mu(+ eL)+8, 'oB (u)' */o+e)+&:e /e-u8+&on
Bou8! /e(u8+ &n +'e /e(+/&n+ o0 +/!e. F7$phasis and underscorin) suppliedG
:n this case, petitioner 'ailed to sho( that the proscription o' $ilk $anu'acturersP participation in any policy$akin) body 2Section 42i33,
classes and se$inars 'or (o$en and children 2Section !!3= the )ivin) o' assistance, support and lo)istics or trainin) 2Section !3=
and the )ivin) o' donations 2Section /!3 (ould unreasonably ha$per the trade o' breast$ilk substitutes. "etitioner has not
established that the proscribed activities are indispensable to the trade o' breast$ilk substitutes. "etitioner 'ailed to de$onstrate that
the a'ore$entioned provisions o' the <:<< are unreasonable and oppressive 'or bein) in restraint o' trade.
"etitioner also 'ailed to convince the Court that Section /2(3 o' the <:<< is unreasonable and oppressive. Said section provides 'or
the de'inition o' the ter$ E$ilk co$pany,E to (it*
S7C+:6# / 9 9 9. 2(3 E&ilk Co$panyE shall re'er to the o(ner, $anu'acturer, distributor o' in'ant 'or$ula, 'ollo(-up
$ilk, $ilk 'or$ula, $ilk supple$ent, breast$ilk substitute or replace$ent, or by any other description o' such nature,
includin) their representatives (ho pro$ote or other(ise advance their co$$ercial interests in $arketin) those
products=
6n the other hand, Section 4 o' the &ilk Code provides*
2d3 ECistributorE $eans a person, corporation or any other entity in the public or private sector en)a)ed in the
business 2(hether directly or indirectly3 o' $arketin) at the (holesale or retail level a product (ithin the scope o' this
Code. ; Epri$ary distributorE is a $anu'acturer1s sales a)ent, representative, national distributor or broker.
9 9 9 9
2>3 E&anu'acturerE $eans a corporation or other entity in the public or private sector en)a)ed in the business or
'unction 2(hether directly or indirectly or throu)h an a)ent or and entity controlled by or under contract (ith it3 o'
$anu'acturin) a products (ithin the scope o' this Code.
#otably, the de'inition in the <:<< $erely $er)ed to)ether under the ter$ E$ilk co$panyE the entities de'ined separately under the
&ilk Code as EdistributorE and E$anu'acturer.E +he <:<< also enu$erated in Section /2(3 the products $anu'actured or distributed
by an entity that (ould Duali'y it as a E$ilk co$pany,E (hereas in the &ilk Code, (hat is used is the phrase Eproducts (ithin the
scope o' this Code.E +hose are the only di''erences bet(een the de'initions )iven in the &ilk Code and the de'inition as re-stated in
the <:<<.
Since all the re)ulatory provisions under the &ilk Code apply eDually to both $anu'acturers and distributors, the Court sees no har$
in the <:<< providin) 'or >ust one ter$ to enco$pass both entities. +he de'inition o' E$ilk co$panyE in the <:<< and the de'initions
o' EdistributorE and E$anu'acturerE provided 'or under the &ilk Code are practically the sa$e.
+he Court is not convinced that the de'inition o' E$ilk co$panyE provided in the <:<< (ould brin) about any chan)e in the treat$ent
or re)ulation o' EdistributorsE and E$anu'acturersE o' breast$ilk substitutes, as de'ined under the &ilk Code.
79cept Sections 42'3, 11 and 46, the rest o' the provisions o' the <:<< are in consonance (ith the ob>ective, purpose and intent o'
the &ilk Code, constitutin) reasonable re)ulation o' an industry (hich a''ects public health and (el'are and, as such, the rest o' the
<:<< do not constitute ille)al restraint o' trade nor are they violative o' the due process clause o' the Constitution.
WHERE"ORE, the petition is 6ART$ALL# GRANTE3. Sections 42'3, 11 and 46 o' ;d$inistrative 6rder #o. !556-551! dated &ay
1!, !556 are declared NULL and %O$3 'or bein) ultra %ires. +he Cepart$ent o' ,ealth and respondents are 6ROH$B$TE3 'ro$
i$ple$entin) said provisions.
+he +e$porary <estrainin) 6rder issued on ;u)ust 1/, !556 is L$"TE3 inso'ar as the rest o' the provisions o' ;d$inistrative 6rder
#o. !556-551! is concerned.
SO OR3ERE3.
0uno- L,hief .usticeM- 8uisumbing- Qnares-Santiago- Sando%al-Gutierrez- ,arpio- ,orona- ,arpio-Morales- Azcuna- 5inga- ,hico-
9azario- Garcia- 6elasco- .r.- 9achura- +e'es- ...- concur.
"oo+no+e(
1
Section 11, <ule , 1990 <ules o' Civil "rocedure (hich provides*
Se)+&on 11. Mis2oinder and non-2oinder of parties. - #either $is>oinder nor non->oinder o' parties is )round 'or
dis$issal o' an action. 6/+&e( ., 4e !/o**e! o/ !!e! 4, o/!e/ o0 +'e )ou/+ on $otion o' any party
or on &+( oBn &n&+&+&:e + n, (+-e o0 +'e )+&on and on such ter$s as are >ust. 9 9 9 27$phasis supplied3
!
;rticle 11. :$ple$entation and $onitorin)
11.1 @overn$ents should take action to )ive e''ect to the principles and ai$ o' this Code, as appropriate to
their social and le)islative 'ra$e(ork, includin) the adoption o' national le)islation, re)ulations or other
suitable $easures. For this purpose, )overn$ents should seek, (hen necessary, the cooperation o' W,6,
A#:C7F and other a)encies o' the Anited #ations syste$. #ational policies and $easures, includin) la(s
and re)ulations, (hich are adopted to )ive e''ect to the principles and ai$ o' this Code should be publicly
stated, and should apply on the sa$e basis to all those involved in the $anu'acture and $arketin) o'
products (ithin the scope o' this Code.
9 9 9 9