ENBANC

DATUZALDYUYAMPATUAN,G.R.No.190259
ANSARUDDINADIONG,REGIE
SAHALIGENERALE
Petitioners,Present:
CORONA,C.J.,
CARPIO,
CARPIOMORALES,
VELASCO,JR.,
NACHURA,
LEONARDODECASTRO,
versusBRION,
PERALTA,
BERSAMIN,
DELCASTILLO,
ABAD,
VILLARAMA,JR.,
PEREZ,
MENDOZA,and
SERENO,JJ.
HON.RONALDOPUNO,inhiscapacity
asSecretaryoftheDepartmentofInterior
andLocalGovernmentandalteregoof
PresidentGloriaMacapagalArroyo,
andanyoneactinginhissteadandon
behalfofthePresidentofthePhilippines,
ARMEDFORCESOFTHEPHILIPPINES
(AFP),oranyoftheirunitsoperatingin
theAutonomousRegioninMuslim
Mindanao(ARMM),andPHILIPPINE
NATIONALPOLICE,oranyoftheirPromulgated:
unitsoperatinginARMM,
Respondents.June7,2011

xx

DECISION

ABAD,J.:

OnNovember24,2009,thedayafterthegruesomemassacreof57menandwomen,includingsome
[1]
news reporters, then President Gloria MacapagalArroyo issued Proclamation 1946, placing the
ProvincesofMaguindanaoandSultanKudaratandtheCityofCotabatounderastateofemergency.
ShedirectedtheArmedForcesofthePhilippines(AFP)andthePhilippineNationalPolice(PNP)to
undertakesuchmeasuresasmaybeallowedbytheConstitutionandbylawtopreventandsuppress
allincidentsoflawlessviolenceinthenamedplaces.

ThreedayslateroronNovember27,PresidentArroyoalsoissuedAdministrativeOrder273
[2]
(AO 273) transferring supervision of the Autonomous Region of Muslim Mindanao (ARMM)
fromtheOfficeofthePresidenttotheDepartmentofInteriorandLocalGovernment(DILG).But,
duetoissuesraisedovertheterminologyusedinAO273,thePresidentissuedAdministrativeOrder
273A (AO 273A) amending the former, by delegating instead of transferring supervision of the
[3]
ARMMtotheDILG.

ClaimingthatthePresidentsissuancesencroachedontheARMMsautonomy,petitionersDatuZaldy
[4]
Uy Ampatuan, Ansaruddin Adiong, and Regie SahaliGenerale, all ARMM officials, filed this
petitionforprohibitionunderRule65.Theyallegedthattheproclamationandtheordersempowered
theDILGSecretarytotakeoverARMMsoperationsandseizetheregionalgovernmentspowers,in
violationoftheprincipleoflocalautonomyunderRepublicAct9054(alsoknownastheExpanded
ARMMAct)andtheConstitution.ThePresidentgavetheDILGSecretarythepowertoexercise,not
merely administrative supervision, but control over the ARMM since the latter could suspend
[5]
ARMMofficialsandreplacethem.

PetitionerARMM officials claimed that the President had no factual basis for declaring a state of
emergency,especiallyintheProvinceofSultanKudaratandtheCityofCotabato,wherenocritical
violentincidentsoccurred.ThedeploymentoftroopsandthetakingoveroftheARMMconstitutes
[6]
aninvalidexerciseofthePresidentsemergencypowers. PetitionersaskedthatProclamation1946
aswellasAOs273and273AbedeclaredunconstitutionalandthatrespondentsDILGSecretary,
theAFP,andthePNPbeenjoinedfromimplementingthem.

[7]
Initscommentfortherespondents, theOfficeoftheSolicitorGeneral(OSG)insistedthat
thePresidentissuedProclamation1946,nottodeprivetheARMMofitsautonomy,buttorestore
[8]

[8]
peace and order in subject places. She issued the proclamation pursuant to her calling out
[9]
power as CommanderinChief under the first sentence of Section 18, Article VII of the
[10]
Constitution.Thedeterminationoftheneedtoexercisethispowerrestssolelyonherwisdom.
Shemustuseherjudgmentbasedonintelligencereportsandsuchbestinformationasareavailable
tohertocalloutthearmedforcestosuppressandpreventlawlessviolencewhereverandwhenever
theserearedtheiruglyheads.
On the other hand, the President merely delegated through AOs 273 and 273A her
supervisorypowersovertheARMMtotheDILGSecretarywhowasheralteregoanyway.These
orders did not authorize a take over of the ARMM. They did not give him blanket authority to
[11]
suspendorreplaceARMMofficials.
Thedelegationwasnecessarytofacilitatetheinvestigation
[12]
ofthemasskillings.
Further,theassailedproclamationandadministrativeordersdidnotprovide
[13]
fortheexerciseofemergencypowers.

Althoughnormalcyhasinthemeantimereturnedtotheplacessubjectofthispetition,itmightbe
relevanttoruleontheissuesraisedinthispetitionsincesomeactsdonepursuanttoProclamation
1946 and AOs 273 and 273A could impact on the administrative and criminal cases that the
governmentsubsequentlyfiledagainstthosebelievedaffectedbysuchproclamationandorders.

TheIssuesPresented

Theissuespresentedinthiscaseare:

1.WhetherornotProclamation1946andAOs273and273Aviolatetheprincipleoflocal
autonomyunderSection16,ArticleXoftheConstitution,andSection1,ArticleVoftheExpanded
ARMMOrganicAct

2. Whether or not President Arroyo invalidly exercised emergency powers when she called
outtheAFPandthePNPtopreventandsuppressallincidentsoflawlessviolenceinMaguindanao,
SultanKudarat,andCotabatoCityand

3.WhetherornotthePresidenthadfactualbasesforheractions.

TheRulingsoftheCourt
Wedismissthepetition.

One.Theclaimofpetitionersthatthesubjectproclamationandadministrativeordersviolate

the principle of local autonomy is anchored on the allegation that, through them, the President
authorized the DILG Secretary to take over the operations of the ARMM and assume direct
governmentalpowersovertheregion.

But, in the first place, the DILG Secretary did not take over control of the powers of the
ARMM. After law enforcement agents took respondent Governor of ARMM into custody for
allegedcomplicityintheMaguindanaomassacre,theARMMViceGovernor,petitionerAnsaruddin
Adiong,assumedthevacatedpostonDecember10,2009pursuanttotheruleonsuccessionfoundin
[14]
ArticleVII,Section12,
ofRA9054. Inturn,ActingGovernorAdiongnamedthethenSpeaker
[15]
oftheARMMRegionalAssembly,petitionerSahaliGenerale,ActingARMMViceGovernor.
Inshort,theDILGSecretarydidnottakeovertheadministrationoroperationsoftheARMM.

Two.PetitionerscontendthatthePresidentunlawfullyexercisedemergencypowerswhenshe
orderedthedeploymentofAFPandPNPpersonnelintheplacesmentionedintheproclamation.

[16]

ButsuchdeploymentisnotbyitselfanexerciseofemergencypowersasunderstoodunderSection
23(2),ArticleVIoftheConstitution,whichprovides:

SECTION23.xxx(2)Intimesofwarorothernationalemergency,theCongressmay,
bylaw,authorizethePresident,foralimitedperiodandsubjecttosuchrestrictionsasitmay
prescribe, to exercise powers necessary and proper to carry out a declared national policy.
UnlesssoonerwithdrawnbyresolutionoftheCongress,suchpowersshallceaseuponthenext
adjournmentthereof.

ThePresidentdidnotproclaimanationalemergency,onlyastateofemergencyinthethree
placesmentioned.AndshedidnotactpursuanttoanylawenactedbyCongressthatauthorizedher
toexerciseextraordinarypowers.Thecallingoutofthearmedforcestopreventorsuppresslawless
violenceinsuchplacesisapowerthattheConstitutiondirectlyvestsinthePresident.Shedidnot
needacongressionalauthoritytoexercisethesame.

Three.ThePresidentscallonthearmedforcestopreventorsuppresslawlessviolencesprings
[17]
fromthepowervestedinherunderSection18,ArticleVIIoftheConstitution,whichprovides.

SECTION18.ThePresidentshallbetheCommanderinChiefofallarmedforcesofthe
Philippinesandwheneveritbecomesnecessary,hemaycalloutsucharmedforcestopreventor
suppresslawlessviolence,invasionorrebellion.xxx

WhileitistruethattheCourtmayinquireintothefactualbasesforthePresidentsexerciseof
[18]
the above power,
it would generally defer to her judgment on the matter. As the Court

[19]
acknowledgedinIntegratedBarofthePhilippinesv.Hon.Zamora,
itisclearlytothePresident
that the Constitution entrusts the determination of the need for calling out the armed forces to
preventandsuppresslawlessviolence.Unlessitisshownthatsuchdeterminationwasattendedby
graveabuseofdiscretion,theCourtwillaccordrespecttothePresidentsjudgment.Thus,theCourt
said:

Ifthepetitionerfails,bywayofproof,tosupporttheassertionthatthePresidentacted
withoutfactualbasis,thenthisCourtcannotundertakeanindependentinvestigationbeyondthe
pleadings. The factual necessity of calling out the armed forces is not easily quantifiable and
cannot be objectively established since matters considered for satisfying the same is a
combinationofseveralfactorswhicharenotalwaysaccessibletothecourts.Besidestheabsence
oftextualstandardsthatthecourtmayusetojudgenecessity,informationnecessarytoarriveat
such judgment might also prove unmanageable for the courts. Certain pertinent information
mightbedifficulttoverify,orwhollyunavailabletothecourts.Inmanyinstances,theevidence
uponwhichthePresidentmightdecidethatthereisaneedtocalloutthearmedforcesmaybe
ofanaturenotconstitutingtechnicalproof.

Ontheotherhand,thePresident,asCommanderinChiefhasavastintelligencenetwork
to gather information, some of which may be classified as highly confidential or affecting the
security of the state. In the exercise of the power to call, onthespot decisions may be
imperatively necessary in emergency situations to avert great loss of human lives and mass
destruction of property. Indeed, the decision to call out the military to prevent or suppress
[20]
lawlessviolencemustbedoneswiftlyanddecisivelyifitweretohaveanyeffectatall.xxx.

Here, petitioners failed to show that the declaration of a state of emergency in the Provinces of
Maguindanao,SultanKudaratandCotabatoCity,aswellasthePresidentsexerciseofthecallingout
power had no factual basis. They simply alleged that, since not all areas under the ARMM were
placedunderastateofemergency,itfollowsthatthetakeoveroftheentireARMMbytheDILG
[21]
Secretaryhadnobasistoo.

But,apartfromthefactthattherewasnosuchtakeovertobeginwith,theOSGalsoclearly
explainedthefactualbasesforthePresidentsdecisiontocalloutthearmedforces,asfollows:

TheAmpatuanandMangudadatuclansareprominentfamiliesengagedinthepolitical
control of Maguindanao. It is also a known fact that both families have an arsenal of armed
followerswhoholdelectivepositionsinvariouspartsoftheARMMandtherestofMindanao.

Considering the fact that the principal victims of the brutal bloodshed are members of
the Mangudadatu family and the main perpetrators of the brutal killings are members and
followersoftheAmpatuanfamily,boththemilitaryandpolicehadtoprepareforandprevent
reportedretaliatoryactionsfromtheMangudadatuclanandadditionaloffensivemeasuresfrom
theAmpatuanclan.

xxxx

The Ampatuan forces are estimated to be approximately two thousand four hundred
(2,400)persons,equippedwithabouttwothousand(2,000)firearms,aboutfourhundred(400)
ofwhichhavebeenaccountedfor.xxx

ofwhichhavebeenaccountedfor.xxx

As for the Mangudadatus, they have an estimated one thousand eight hundred (1,800)
personnel,withabouttwohundred(200)firearms.xxx

Apartfromtheirownpersonalforces,bothclanshaveSpecialCivilianAuxiliaryArmy
(SCAA) personnel who support them: about five hundred (500) for the Ampatuans and three
hundred(300)fortheMangudadatus.

What could be worse than the armed clash of two warring clans and their armed
supporters,especiallyinlightofintelligencereportsonthepotentialinvolvementofrebelarmed
groups(RAGs).

One RAG was reported to have planned an attack on the forces of Datu Andal
Ampatuan,Sr.toshowsupportandsympathyforthevictims.Thesaidattackshallworsenthe
ageoldterritorialdisputebetweenthesaidRAGandtheAmpatuanfamily.

xxxx

Ontheotherhand,RAGfactionwhichisbasedinSultanKudaratwasreportedtohave
received three million pesos (P3,000,000.00) from Datu Andal Ampatuan, Sr. for the
procurementofammunition.Thesaidfactionisaforcetoreckonwithbecausethegroupiswell
capable of launching a series of violent activities to divert the attention of the people and the
authoritiesawayfromthemultiplemurdercase.xxx

Inaddition,twootherfactionsofaRAGarelikelytosupporttheMangudadatufamily.
The Cotabatobased faction has the strength of about five hundred (500) persons and three
hundredseventytwo(372)firearmswhiletheSultanKudaratbasedfactionhasthestrengthof
about four hundred (400) persons and three hundred (300) firearms and was reported to be
movingtowardsMaguindanaotosupporttheMangudadatuclaninitsarmedfightagainstthe
[22]
Ampatuans.

Inotherwords,theimminenceofviolenceandanarchyatthetimethePresidentissuedProclamation
1946wastoogravetoignoreandshehadtoacttopreventfurtherbloodshedandhostilitiesinthe
placesmentioned.Progressreportsalsoindicatedthattherewasmovementintheseplacesofboth
[23]
highpoweredfirearmsandarmedmensympathetictothetwoclans.
Thus,topacifythepeoples
fearsandstabilizethesituation,thePresidenthadtotakepreventiveaction.Shecalledoutthearmed
forces to control the proliferation of loose firearms and dismantle the armed groups that
continuouslythreatenedthepeaceandsecurityintheaffectedplaces.

Notably, the present administration of President Benigno Aquino III has not withdrawn the
[24]
declaration of a state of emergency under Proclamation 1946. It has been reported
that the
declaration would not be lifted soon because there is still a need to disband private armies and
confiscateloosefirearms.Apparently,thepresenceoftroopsinthoseplacesisstillnecessarytoease
fear and tension among the citizenry and prevent and suppress any violence that may still erupt,
despitethepassageofmorethanayearfromthetimeoftheMaguindanaomassacre.

Sincepetitionersarenotabletodemonstratethattheproclamationofstateofemergencyin

Sincepetitionersarenotabletodemonstratethattheproclamationofstateofemergencyin
the subject places and the calling out of the armed forces to prevent or suppress lawless violence
therehaveclearlynofactualbases,theCourtmustrespectthePresidentsactions.

WHEREFORE,thepetitionisDISMISSEDforlackofmerit.

SOORDERED.

ROBERTOA.ABAD
AssociateJustice

WECONCUR:

RENATOC.CORONA
ChiefJustice

ANTONIOT.CARPIOCONCHITACARPIOMORALES
AssociateJusticeAssociateJustice

PRESBITEROJ.VELASCO,JR.ANTONIOEDUARDOB.NACHURA
AssociateJusticeAssociateJustice

TERESITAJ.LEONARDODECASTROARTUROD.BRION
AssociateJusticeAssociateJustice

DIOSDADOM.PERALTALUCASP.BERSAMIN
AssociateJusticeAssociateJustice

MARIANOC.DELCASTILLOMARTINS.VILLARAMA,JR.
AssociateJusticeAssociateJustice

JOSEPORTUGALPEREZJOSECATRALMENDOZA
AssociateJusticeAssociateJustice

MARIALOURDESP.A.SERENO
AssociateJustice

CERTIFICATION

Pursuant to Section 13, Article VIII of the Constitution, it is hereby certified that the
conclusionsintheaboveDecisionhadbeenreachedinconsultationbeforethecasewasassignedto
thewriteroftheopinionoftheCourt.

RENATOC.CORONA
ChiefJustice

[1]
Rollo,p.34.
[2]
Id.at36.
[3]
Id.at80.
[4]
Ampatuan,AdiongandSahaliGeneralewere,respectively,theGovernor,ViceGovernorandSpeakeroftheLegislativeAssemblyofthe
ARMMatthattime.

ARMMatthattime.
[5]
Rollo,pp.1417.
[6]
Id.at2022.
[7]
Id.at63.
[8]
Id.at85,87,95.
[9]
Id.at98.
[10]
Id.at76.
[11]
Id.at95.
[12]
Id.at78.
[13]
Id.at110.
[14]
SEC. 12. Succession to Regional Governorship in Cases of Temporary Incapacity. In case of temporary incapacity of the regional
Governortoperformhisdutiesonaccountofphysicalorlegalcauses,orwhenheisonofficialleaveofabsenceorontraveloutsidethe
territorial jurisdiction of the Republic of the Philippines, the Regional ViceGovernor, or if there be none or in case of his permanent or
temporaryincapacityorrefusaltoassumeoffice,theSpeakeroftheRegionalAssemblyshallexercisethepowers,dutiesandfunctionsofthe
RegionalGovernorasprescribedbylawenactedbytheRegionalAssemblyorintheabsencethereof,bythepertinentprovisionsofRepublic
Act7160ortheLocalGovernmentCodeof1991.
[15]
http://services.inquirer.net/print/print.php?article_id=20100707279759.
[16]
Rollo,p.22.
[17]
SeeSANLAKASv.ExecutiveSecretaryReyes,466Phil.482,509510(2004).
[18]
Lacsonv.Sec.Perez,410Phil.78,93(2001).
[19]
392Phil.618,635(2000).
[20]
Id.at643644.
[21]
Rollo,pp.2021.
[22]
Id.at101105.
[23]
Id.at105.
[24]
http://www.abscbnnews.com/video/nation/regions/11/23/10/stateemergencymaguindanaostays
http://www.sunstar.com.ph/manila/localnews/aquinostateemergencymaguindanaostays
http://www.bomboradyo.com/index.php/news/topstories/29331stateofemergencysacmindanaomananatili
http://www.zambotimes.com/archives/26011StateofemergencyinMaguindanao
remains.html.