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G.R. No. 192935 December 7, 2010

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

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G.R. No. 19303%

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

D E C I S I O N

#!NDOA, J.:

When the judiciary mediates to allocate constitutional boundaries, it does not assert any superiorityover the other departments; it does not in reality nullify or invalidate an act of the legislature, but only asserts the solemn and sacred obligation assigned to it by the Constitution to determine conflictingclaims of authority under the Constitution and to establish for the parties in an actual controversy therights which that instrument secures and guarantees to them.

--- Justice Jose P. Laurel1

!e role o" t!e Constitution cannot #e overloo$ed. It is t!rou%! t!e Constitution t!at t!e "unda&ental

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

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

!e "irst case is 0.R. No. 1)*, a special civil action "or pro!i#ition instituted #( petitioner Louis

2irao%o 32irao%o4 in !is capacit( as a citi5en and taxpa(er. 2irao%o assails Executive Order No. 1"or #ein% violative o" t!e le%islative po'er o" Con%ress under Section 1, 6rticle 7I o" t!eConstitution8 as it usurps t!e constitutional aut!orit( o" t!e le%islature to create a pu#lic o""ice and toappropriate "unds t!ere"or .9

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

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!e %enesis o" t!e "ore%oin% cases can #e traced to t!e events prior to t!e !istoric ;a( )1elections, '!en t!en Senator 2eni%no Si&eon 6

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S!CTION 1. Cre+o o + Commo. !ere is !ere#( created t!e ILIIN! TRUTCO##ISSION, !ereina"ter re"erred to as t!e "CO##ISSION," '!ic! s!all pri&aril( see$ and "indt!e trut! on, and to'ard t!is end, investi%ate reports o" %ra"t and corruption o" suc! scale and&a%nitude t!at s!oc$ and o""end t!e &oral and et!ical sensi#ilities o" t!e people, co&&itted #(pu#lic o""icers and e&plo(ees, t!eir co-principals, acco&plices and accessories "ro& t!e privatesector, i" an(, durin% t!e previous ad&inistrationA and t!erea"ter reco&&end t!e appropriate action

or &easure to #e ta$en t!ereon to ensure t!at t!e "ull &easure o" =ustice s!all #e served 'it!out "ear or "avor.

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

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

In particular, it s!all>

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

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

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course o" its investi%ation t!e Co&&ission "inds t!at t!ere is reasona#le %round to#elieve t!at t!e( are lia#le "or %ra"t and corruption under pertinent applica#le la'sA

!4 Call upon an( %overn&ent investi%ative or prosecutorial a%enc( suc! as t!eDepart&ent o" Justice or an( o" t!e a%encies under it, and t!e Presidential 6nti-0ra"tCo&&ission, "or suc! assistance and cooperation as it &a( re

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

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opposed to a particular eventA 3*4 t!e( are te&porar( #odies t!at "inis! t!eir 'or$ 'it! t!esu#&ission o" a report containin% conclusions and reco&&endationsA and 3+4 t!e( are o""iciall(sanctioned, aut!ori5ed or e&po'ered #( t!e State.1/Co&&issionBs &eers are usuall(e&po'ered to conduct researc!, support victi&s, and propose polic( reco&&endations to preventrecurrence o" cri&es. !rou%! t!eir investi%ations, t!e co&&issions &a( ai& to discover and learn&ore a#out past a#uses, or "or&all( ac$no'led%e t!e&. !e( &a( ai& to prepare t!e 'a( "or

prosecutions and reco&&end institutional re"or&s./11

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

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

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

!e !rusts o" t!e Petitions

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

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

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

3c4 E.O. No. 1 ille%all( a&ended t!e Constitution and pertinent statutes '!en it vested t!e/rut! Co&&ission/ 'it!

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3e4 !e creation o" t!e /P!ilippine rut! Co&&ission o" )1/ violates t!e consistent and%eneral international practice o" "our decades '!erein States constitute trut! co&&issions toexclusivel( investi%ate !u&an ri%!ts violations, '!ic! custo&ar( practice "or&s part o" t!e%enerall( accepted principles o" international la' '!ic! t!e P!ilippines is &andated toad!ere to pursuant to t!e Declaration o" Principles ens!rined in t!e Constitution.

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

3%4 !e &ere "act t!at previous co&&issions 'ere not constitutionall( c!allen%ed is o" no&o&ent #ecause neit!er lac!es nor estoppel can #ar an eventual

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

*. !et!er or not Executive Order No. 1 supplants t!e po'ers o" t!e Ouds&an and t!eDOJA

+. !et!er or not Executive Order No. 1 violates t!e e

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Indeed, le%islators !ave a le%al standin% to see to it t!at t!e prero%ative, po'ers and privile%esvested #( t!e Constitution in t!eir o""ice re&ain inviolate. !us, t!e( are allo'ed to /In &attero" &ere pu#lic ri%!t, !o'evert!e people are t!e real partiesIt is at least t!e ri%!t, i" not t!e dut(,o" ever( citi5en to inter"ere and see t!at a pu#lic o""ence #e properl( pursued and punis!ed, and t!ata pu#lic %rievance #e re&edied./ it! respect to taxpa(erBs suits, err v. -ordan !eld t!at /t!e ri%!to" a citi5en and a taxpa(er to &aintain an action in courts to restrain t!e unla'"ul use o" pu#lic "undsto !is in=ur( cannot #e denied./

:o'ever, to prevent =ust a#out an( person "ro& see$in% =udicial inter"erence in an( o""icial polic( oract 'it! '!ic! !e disa%reed 'it!, and t!us !inders t!e activities o" %overn&ental a%encies en%a%ed

in pu#lic service, t!e nited State Supre&e Court laid do'n t!e &ore strin%ent /-recEr;/ e in &+ Parte (evitt , later rea""ir&ed inileston v. llman. !e sa&e Court ruled t!at "or aprivate individual to invo$e t!e =udicial po'er to deter&ine t!e validit( o" an executive or le%islativeaction, =e m =o4 =+ =e =+ +e- + -rec Er; + + re o =+ +co, +- o ce =+ =e =+ + 6eer+ ere commo o + member o =e :bc.

!is Court adopted t!e "-rec Er;" e in our =urisdiction. In People v. /era, it !eld t!at t!eperson '!o i&pu%ns t!e validit( o" a statute &ust !ave /+ :ero+ +- b++ ere =ec+e c= =+ =e =+ +e-, or 4 + -rec Er; + + re./ !e /era doctrine

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'as up!eld in a litan( o" cases, suc! as, Custodio v. President of the enate, 0anila 'ace 1orserainers2 %ssociation v. 3e la 4uente, Pascual v. ecretary of Public Wor*s and %nti5Chinese(eague of the Philippines v. 4eli+. KE&p!ases included. Citations o&ittedG

Not'it!standin%, t!e Court leans on t!e doctrine t!at /t!e rule on standin% is a &atter o" procedure,!ence, can #e relaxed "or nontraditional plainti""s li$e ordinar( citi5ens, taxpa(ers, and le%islators

'!en t!e pu#lic interest so re

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

exercise o" its ad&inistrative "unctions.*@

 !is po'er, as t!e OS0 explains it, is #ut an ad=unct o" t!eplenar( po'ers 'ielded #( t!e President under Section 1 and !is po'er o" control under Section 19,#ot! o" 6rticle 7II o" t!e Constitution.*

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

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

!us, t!e OS0 concludes t!at t!e po'er o" control necessaril( includes t!e po'er to create o""ices.or t!e OS0, t!e President &a( create t!e PC in order to, a&on% ot!ers, put a closure to t!ereported lar%e scale %ra"t and corruption in t!e %overn&ent.+

!e Does t!e creation o" t!e PC "all 'it!in t!e ait o" t!e po'er to reor%ani5e as expressed in Section *1 o" t!e Revised 6d&inistrative Code Section *1conte&plates /reor%ani5ation/ as li&ited #( t!e "ollo'in% "unctional and structural lines> 314

restructurin% t!e internal or%ani5ation o" t!e O""ice o" t!e President Proper #( a#olis!in%,consolidatin% or &er%in% units t!ereo" or trans"errin% "unctions "ro& one unit to anot!erA 3)4trans"errin% an( "unction under t!e O""ice o" t!e President to an( ot!er Depart&entF6%enc( or viceversaA or 3*4 trans"errin% an( a%enc( under t!e O""ice o" t!e President to an( ot!erDepart&entF6%enc( or vice versa. Clearl(, t!e provision re"ers to reduction o" personnel,consolidation o" o""ices, or a#olition t!ereo" #( reason o" econo&( or redundanc( o" "unctions. !esepoint to situations '!ere a #od( or an o""ice is alread( existent #ut a &odi"ication or alterationt!ereo" !as to #e e""ected. !e creation o" an o""ice is no'!ere &entioned, &uc! less envisioned insaid provision. 6ccordin%l(, t!e ans'er to t!e

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e""icienc(, s!all !ave t!e continuin% aut!orit( to reor%ani5e t!e ad&inistrative structure o" t!e O""iceo" t!e President./ or t!is purpose, !e &a( trans"er t!e "unctions o" ot!er Depart&ents or 6%enciesto t!e O""ice o" t!e President. In Canoni5ado v. 6%uirre K*)* SCR6 *1) 3)4G, 'e ruled t!atreor%ani5ation /involves t!e reduction o" personnel, consolidation o" o""ices, or a#olition t!ereo" #(reason o" econo&( or redundanc( o" "unctions./ It ta$es place '!en t!ere is an alteration o" t!eexistin% structure o" %overn&ent o""ices or units t!erein, includin% t!e lines o" control, aut!orit( and

responsi#ilit( #et'een t!e&. !e EII2 is a #ureau attac!ed to t!e Depart&ent o" inance. It "allsunder t!e O""ice o" t!e President. :ence, it is su#=ect to t!e PresidentBs continuin% aut!orit( toreor%ani5e. KE&p!asis SuppliedG

In t!e sa&e vein, t!e creation o" t!e PC is not =usti"ied #( t!e PresidentBs po'er o" control. Controlis essentiall( t!e po'er to alter or &odi"( or nulli"( or set aside '!at a su#ordinate o""icer !ad donein t!e per"or&ance o" !is duties and to su#stitute t!e =ud%&ent o" t!e "or&er 'it! t!at o" t!elatter.+9 Clearl(, t!e po'er o" control is entirel( di""erent "ro& t!e po'er to create pu#lic o""ices. !e"or&er is in!erent in t!e Executive, '!ile t!e latter "inds #asis "ro& eit!er a valid dele%ation "ro&Con%ress, or !is in!erent dut( to "ait!"ull( execute t!e la's.

!e

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

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

 6SSOCI6E JSICE C6RPIO> 2ecause P.D. 1+18 'as enacted 'as t!e last '!ereas clause o"

P.D. 1+18 sa(s /it 'as enacted to prepare t!e transition "ro& presidential to parlia&entar(. No', in aparlia&entar( "or& o" %overn&ent, t!e le%islative and executive po'ers are "used, correct

SOLICIOR 0ENER6L C6DI> es, our :onor.

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

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

 6SSOCI6E JSICE C6RPIO> !e po'er o" t!e President to reor%ani5e t!e entire National0overn&ent is dee&ed repealed, at least, upon t!e adoption o" t!e 1@9 Constitution, correct.

SOLICIOR 0ENER6L C6DI> es, our :onor.

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

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

 6s correctl( pointed out #( t!e respondents, t!e allocation o" po'er in t!e t!ree principal #ranc!eso" %overn&ent is a %rant o" all po'ers in!erent in t!e&. !e PresidentBs po'er to conductinvesti%ations to aid !i& in ensurin% t!e "ait!"ul execution o" la's in t!is case, "unda&ental la's on

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

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

It 'ould not #e accurate, !o'ever, to state t!at /executive po'er/ is t!e po'er to en"orce t!e la's,"or t!e President is !ead o" state as 'ell as !ead o" %overn&ent and '!atever po'ers in!ere in suc!positions pertain to t!e o""ice unless t!e Constitution itsel" 'it!!olds it. urt!er&ore, t!e Constitution

itsel" provides t!at t!e execution o" t!e la's is onl( one o" t!e po'ers o" t!e President. It also %rantst!e President ot!er po'ers t!at do not involve t!e execution o" an( provision o" la', e.%., !is po'erover t!e countr(s "orei%n relations.

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

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

Indeed, t!e Executive is %iven &uc! lee'a( in ensurin% t!at our la's are "ait!"ull( executed. 6sstated a#ove, t!e po'ers o" t!e President are not li&ited to t!ose speci"ic po'ers under t!eConstitution.* One o" t!e reco%ni5ed po'ers o" t!e President %ranted pursuant to t!isconstitutionall(-&andated dut( is t!e po'er to create ad !oc co&&ittees. !is "lo's "ro& t!eo#vious need to ascertain "acts and deter&ine i" la's !ave #een "ait!"ull( executed. !us,in 3epartment of 1ealth v. Camposano,+ t!e aut!orit( o" t!e President to issue 6d&inistrative OrderNo. )@, creatin% an investi%ative co&&ittee to loo$ into t!e ad&inistrative c!ar%es "iled a%ainst t!e

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e&plo(ees o" t!e Depart&ent o" :ealt! "or t!e ano&alous purc!ase o" &edicines 'as up!eld. Insaid case, it 'as ruled>

T=e C=e !

"6nvestigate," co&&onl( understood, &eans to exa&ine, explore, in in

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into s(ste&aticall(> /to searc! or in x x to su#=ect to an o""icial pro#e x x> to conduct ano""icial in /3t4o "ollo' up step #( step #( patientin

!is po'er o" investi%ation %ranted to t!e Ouds&an #( t!e 1@9 Constitution and !eOuds&an 6ct is not exclusive #ut is s!ared 'it! ot!er si&ilarl( aut!ori5ed %overn&ent a%enciessuc! as t!e PC00 and =ud%es o" &unicipal trial courts and &unicipal circuit trial courts. !e po'er

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to conduct preli&inar( investi%ation on c!ar%es a%ainst pu#lic e&plo(ees and o""icials is li$e'iseconcurrentl( s!ared 'it! t!e Depart&ent o" Justice. Despite t!e passa%e o" t!e Local 0overn&entCode in 11, t!e Ouds&an retains concurrent =urisdiction 'it! t!e O""ice o" t!e President andt!e local San%%unians to investi%ate co&plaints a%ainst local elective o""icials. KE&p!asis suppliedG.

 6lso, Executive Order No. 1 cannot contravene t!e po'er o" t!e Ouds&an to investi%ate cri&inal

cases under Section 1 314 o" R.6. No. 899, '!ic! states>

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

!e act o" investi%ation #( t!e Ouds&an as enunciated a#ove conte&plates t!e conduct o" apreli&inar( investi%ation or t!e deter&ination o" t!e existence o" pro#a#le cause. !is iscate%oricall( out o" t!e PCBs sp!ere o" "unctions. Its po'er to investi%ate is li&ited to o#tainin% "actsso t!at it can advise and %uide t!e President in t!e per"or&ance o" !is duties relative to t!e

execution and en"orce&ent o" t!e la's o" t!e land. In t!is re%ard, t!e PC co&&its no act o"usurpation o" t!e Ouds&anBs pri&ordial duties.

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

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

7iolation o" t!e E

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durin% prior ad&inistrations '!ere t!e /sa&e &a%nitude o" controversies and ano&alies/8@ 'erereported to !ave #een co&&itted a%ainst t!e ilipino people. !e( assail t!e classi"ication"or&ulated #( t!e respondents as it does not "all under t!e reco%ni5ed exceptions #ecause "irst,/t!ere is no su#stantial distinction #et'een t!e %roup o" o""icials tar%eted "or investi%ation #(Executive Order No. 1 and ot!er %roups or persons '!o a#used t!eir pu#lic o""ice "or personal %ainAand second, t!e selective classi"ication is not %er&ane to t!e purpose o" Executive Order No. 1 to

end corruption./8

 In order to attain constitutional per&ission, t!e petitioners advocate t!at t!eco&&ission s!ould deal 'it! /%ra"t and %ra"ters prior and su#se

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One o" t!e #asic principles on '!ic! t!is %overn&ent 'as "ounded is t!at o" t!e e

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constitutional pro!i#ition a%ainst ine

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discri&inatin% di""erentiation clearl( rever#erates to la#el t!e co&&ission as a ve!icle "orvindictiveness and selective retri#ution.

!ou%! t!e OS0 enu&erates several di""erences #et'een t!e 6rro(o ad&inistration and ot!er pastad&inistrations, t!ese distinctions are not su#stantial enou%! to &erit t!e restriction o" t!einvesti%ation to t!e /previous ad&inistration/ onl(. !e reports o" 'idespread corruption in t!e 6rro(o

ad&inistration cannot #e ta$en as #asis "or distin%uis!in% said ad&inistration "ro& earlierad&inistrations '!ic! 'ere also #le&is!ed #( si&ilar 'idespread reports o" i&propriet(. !e( arenot in!erent in, and do not inure solel( to, t!e 6rro(o ad&inistration. 6s Justice Isa%ani Cru5 put it,/Super"icial di""erences do not &a$e "or a valid classi"ication./@@

!e pu#lic needs to #e enli%!tened '!( Executive Order No. 1 c!ooses to li&it t!e scope o" t!eintended investi%ation to t!e previous ad&inistration onl(. !e OS0 ventures to opine t!at /toinclude ot!er past ad&inistrations, at t!is point, &a( unnecessaril( over#urden t!e co&&ission andlead it to lose its e""ectiveness./@ !e reason %iven is specious. It is 'it!out dou#t irrelevant to t!ele%iti&ate and no#le o#=ective o" t!e PC to sta&p out or /end corruption and t!e evil it #reeds./

!e pro#a#ilit( t!at t!ere 'ould #e di""icult( in uneart!in% evidence or t!at t!e earlier reports

involvin% t!e earlier ad&inistrations 'ere alread( in

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o reiterate, in order "or a classi"ication to &eet t!e re

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

!e Court is not convinced. 6lt!ou%! Section 19 allo's t!e President t!e discretion to expand t!escope o" investi%ations o" t!e PC so as to include t!e acts o" %ra"t and corruption co&&itted inot!er past ad&inistrations, it does not %uarantee t!at t!e( 'ould #e covered in t!e "uture. Suc!expanded &andate o" t!e co&&ission 'ill still depend on t!e '!i& and caprice o" t!e President. I"!e 'ould decide not to include t!e&, t!e section 'ould t!en #e &eanin%less. !is 'ill onl( "orti"( t!e"ears o" t!e petitioners t!at t!e Executive Order No. 1 'as /cra"ted to tailor-"it t!e prosecution o"

o""icials and personalities o" t!e 6rro(o ad&inistration./1

!e Court tried to see$ %uidance "ro& t!e pronounce&ent in t!e case o" /irata v.andiganbayan,18 t!at t!e /PC00 C!arter 3co&posed o" Executive Orders Nos. 1, ) and 1+4 doesnot violate t!e e

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

explain t!e le%al #asis o" its action lest it continuall( #e accused o" #ein% a !indrance to t!e nationBst!rust to pro%ress.

!e P!ilippine Supre&e Court, accordin% to 6rticle 7III, Section 1 o" t!e 1@9 Constitution, is vested'it! Judicial Po'er t!at /includes t!e dut( o" t!e courts o" =ustice to settle actual controversiesinvolvin% ri%!ts '!ic! are le%all( de&anda#le and en"orcea#le, and to deter&ine '!et!er or nott!ere !as #een a %rave o" a#use o" discretion a&ountin% to lac$ or excess o" =urisdiction on t!e parto" an( #ranc! or instru&entalit( o" t!e %overn&ent./

urt!er&ore, in Section +3)4 t!ereo", it is vested 'it! t!e po'er o" =udicial revie' '!ic! is t!e po'erto declare a treat(, international or executive a%ree&ent, la', presidential decree, procla&ation,order, instruction, ordinance, or re%ulation unconstitutional. !is po'er also includes t!e dut( to rule

on t!e constitutionalit( o" t!e application, or operation o" presidential decrees, procla&ations, orders,instructions, ordinances, and ot!er re%ulations. !ese provisions, !o'ever, !ave #een "ertile%rounds o" con"lict #et'een t!e Supre&e Court, on one !and, and t!e t'o co-e

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$no'in% t!e trut! and so it 'ill not allo' itsel" to #e a !indrance or o#stacle to its attain&ent. It &ust,!o'ever, #e e&p!asi5ed t!at t!e searc! "or t!e trut! &ust #e 'it!in constitutional #ounds "or /oursis still a %overn&ent o" la's and not o" &en./11

/!R!$OR!, t!e petitions are 0R6NED. Executive Order No. 1 is !ere#( declaredNCONSIION6L inso"ar as it is violative o" t!e e

R!NATO C. CORONA

C!ie" Justice

ANTONIO T. CARIO 6ssociate Justice

CONCITA CARIO #ORAL!S 6ssociate Justice

R!SBIT!RO &. (!LASCO, &R. 6ssociate Justice

ANTONIO !DUARDO B. NACURA 6ssociate Justice

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

ARTURO D. BRION 6ssociate Justice

DIOSDADO #. !RALTA 6ssociate Justice

LUCAS . B!RSA#IN 6ssociate Justice

#ARIANO C. D!L CASTILLO 6ssociate Justice

ROB!RTO A. ABAD 6ssociate Justice

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

&OS! ORTUGAL !R! 6ssociate Justice

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

C E R I I C 6 I O N

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

R!NATO C. CORONAC!ie" Justice

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$oooe

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

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

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

+ Id.

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

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

9 2irao%o Petition, p. , rollo, p. 9.

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

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

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

11International Center "or ransitional Justice, supra note .

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

!ttp>FFne'sin"o.in

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

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

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

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

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

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

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

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

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

)9 @+ P!il. *8@, *9* 31+4.

)@ /314 t!e c!aracter o" t!e "unds or ot!er assets involved in t!e caseA 3)4 t!e presence o" aclear case o" disre%ard o" a constitutional or statutor( pro!i#ition #( t!e pu#lic respondenta%enc( or instru&entalit( o" t!e %overn&entA and, 3*4 t!e lac$ o" an( ot!er part( 'it! a &oredirect and speci"ic interest in t!e

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

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

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

+) Citin% Evan%elista v. Jarencio, No. L-)9)9+, Noveer )9, 19, 8@ SCR6 , 1+.

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

++ 0.R. No. 1888), 6pril ), )1.

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

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

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

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

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

 SN, Septeer )@, )1, pp. )-)9.

1 OS0 ;e&orandu&, p. *9, rollo, p.*8.

)

 0.R. @@)11, Septeer 1, 1@, 199 SCR6 8@@.* Id. at 81.

+ +8 P!il. @@8, @8-@9 3)4.

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

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

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

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

 0.R. No. 88@1, Deceer ), 11, )+ SCR6 +@*.

8 Id. at +).

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

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

8* Id. at 8, rollo, p. 198.

8+ Id.

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

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

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

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

8 Id. at )@-), rollo, pp. *8-*9.

9 Id. at ), rollo, p. *9.

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

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

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

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

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

Secretar( o" 6%rarian Re"or&, 0.R. No. 9@+), Jul( 1+, 1@, 19 SCR6 *+*, *9.98 #uino v. en*ows*i, + *d 1 3)d. Cir. 14 cited in 6&. Jur, )d, 7ol. 18 3#4, p. *).

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

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

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

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

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

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

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

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

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@ No. L-))+8, SCR6 +, 99-9@ 3Septeer 1), 19+4.

@8 )asa v. 4ederacion !brera de la 6ndustria aba8uera y !tros rabajadores de 4ilipinas4!6%4$, No. L-)911*, Noveer 1, 19+, 81 SCR6 *, 11-111A %nuncension v. 9ational (abor nion, No. L-)89, Noveer ), 199, @ SCR6 *, *9)-*9*A /illegas v. 1iuChiong sai Pao 1o, No. L-)8+8, Noveer 1, 19@, @8 SCR6 )9, )9A 3umlao v.

Comelec , No. L-))+, Januar( )), 1@, SCR6 *), ++ACeni:a v. Comelec , No. L-)*+, Januar( )@, 1@, SCR6 98*, 99)-99*A 1imagan v. People, 0.R. No. 11*@11,Octo#er 9, 1+, )*9 SCR6 *@A he Conference of 0aritime 0anning %gencies, 6nc. v.P!&%, 0.R. No. 11+91+, 6pril )1, 1, )+* SCR6 888, 899A -00 Promotion and0anagement, 6nc. v. Court of %ppeals, 0.R. No. 1), 6u%ust , 18, )8 SCR6 *1,**1**)A and iu v. Court of %ppeals, 0.R. No. 1)9+1, Januar( ), 1, *1 SCR6 )9@,)@@-)@. ee also 6chong v. 1ernande:, No. L-9, 11 P!il. 11 3194A /era v. Cuevas,Nos. L-**8*-+, ;a( *1, 19, SCR6 *9, *@@A and olentino v. ecretary of 4inance,0.R. Nos. 11+, 11), 11+*, 11++, 119+, 119@1, 11@), 11@9*, and 11*1,

 6u%ust ), 1+, )* SCR6 8*, 8@+.

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

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

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

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

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

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

*

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

+ Id. at 8*).

 98 . Supp. *@@, N.. D. Ind., 11, Jan *, 11, Cri& No. :CR -+)Aalso!ttp>FFin."indacase.co&Fresearc!F'"r&Doc7ie'er.aspxFx

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11 See 6&. Jur. )d, 7ol. 18 3#4, pp. *9-*91, as "ootnote 36 state le%islature &a(, consistentl('it! t!e E

... irst, a trut! co&&ission "ocuses on t!e past. Second, a trut! co&&ission is not "ocused on aspeci"ic event, #ut atte&pts to paint t!e overall picture o" certain !u&an ri%!ts a#uses, or violationso" international !u&anitarian la', over a period o" ti&e. !ird, a trut! co&&ission usuall( existste&poraril( and "or a pre-de"ined period o" ti&e, ceasin% to exist 'it! t!e su#&ission o" a report o" its

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"indin%s. inall(, a trut! co&&ission is al'a(s vested 'it! so&e sort o" aut!orit(, #( 'a( o" itssponsor, t!at allo's it %reater access to in"or&ation, %reater securit( or protection to di% intosensitive issues, and a %reater i&pact 'it! its report.9

 6s reported #( 6&nest( International,@ t!ere are at least ** trut! co&&issions esta#lis!ed in )@countries "ro& 19+ to )9 and t!is includes t!e P!ilippines, '!ic! created t!e Presidential

Co&&ittee on :u&an Ri%!ts 3PC:R4 in 1@8 under t!e post-;arcos ad&inistration o" Pres.Cora5on C. 6

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!ave continuin% aut!orit( to reor%ani5e t!e ad&inistrative structure o" t!e O""ice o" t!e President. or t!is purpose, !e &a( ta$e an( o" t!e "ollo'in% actions>

314 Restructure t!e internal or%ani5ation o" t!e O""ice o" t!e President Proper, includin% t!ei&&ediate O""ices, t!e Presidential Special 6ssistantsF6dvisers S(ste& and t!e Co&&onSta"" Support S(ste&, #( a#olis!in%, consolidatin%, or &er%in% units t!ereo" or trans"errin%

"unctions "ro& one unit to anot!erA

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

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

!is provision pertains to t!e PresidentBs continuin% dele%ated po'er to reor%ani5e t!e O""ice o" t!ePresident. !e 'ell-settled principle is t!at t!e President !as t!e po'er to reor%ani5e t!e o""ices and

a%encies in t!e executive depart&ent in line 'it! !is constitutionall( %ranted po'er o" control overexecutive o""ices and #( virtue o" !is dele%ated le%islative po'er to reor%ani5e t!e& under existin%statutes.19 Needless to state, suc! po'er &ust al'a(s #e in accordance 'it! t!e Constitution,relevant la's and prevailin% =urisprudence.1@

In creatin% t!e rut! Co&&ission, did t!e President &erel( exercise !is continuin% aut!orit( toreor%ani5e t!e executive depart&ent No.

Considerin% t!at t!e President 'as exercisin% a dele%ated po'er, !is actions s!ould !avecon"or&ed to t!e standards set #( t!e la', t!at is, t!at t!e reor%ani5ation #e in t!e interest o"/si&plicit(, econo&( and e""icienc(./ ere suc! o#=ectives &et !e( 'ere not. !e rut!Co&&ission clearl( duplicates and supplants t!e "unctions and po'ers o" t!e O""ice o" t!e

Ouds&an andFor t!e Depart&ent o" Justice, as 'ill #e discussed in detail later. :o' can t!ecreation o" a ne' co&&ission 'it! t!e sa&e duplicative "unctions as t!ose o" alread( existin% o""icesresult in econo&( or a &ore e""icient #ureaucrac(1 Suc! a creation #eco&es even &ore

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!e e

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sector, i" an( durin% t!e previous ad&inistrationA and t!erea"ter reco&&end t!e appropriate action to#e ta$en to ensure t!at t!e "ull &easure o" =ustice s!all #e served 'it!out "ear or "avor.

Section ). Po'ers and unctions. !e Co&&ission, '!ic! s!all !ave t!e po'ers o" aninvesti%ative #od( under Section *9, C!apter , 2oo$ I o" t!e 6d&inistrative Code o" 1@9, ispri&aril( tas$ed to conduct a t!orou%! "act-"indin% investi%ation o" reported cases o" %ra"t and

corruption re"erred to in Section 1, involvin% t!ird level pu#lic o""icers and !i%!er, t!eir co-principals,acco&plices and accessories "ro& t!e private sector, i" an( durin% t!e previous ad&inistration andt!erea"ter su#&it its "indin%s and reco&&endations to t!e President, Con%ress and t!eOuds&an. x x x/ 3E&p!asis supplied4

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

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

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

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

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

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

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

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

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

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arsenal o" t!e %overn&ent to inti&idate, !arass and !u&iliate its perceived political ene&ies outsidet!e la'"ul prosecutorial avenues provided #( la' in t!e Ouds&an or t!e Depart&ent o" Justice.

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

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

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

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

Indeed, t!e po'er o" control and supervision o" t!e President includes t!e po'er to discipline '!ic!in turn i&plies t!e po'er to investi%ate.* No Con%ress or Court can dero%ate "ro& t!at po'er *8 #utt!e Constitution itsel" &a( set certain li&its.*9  6nd t!e Constitution !as in "act carved out t!epreli&inar( investi%ator( aspect o" t!e control po'er and allocated t!e sa&e to t!e "ollo'in%>

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

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

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

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

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

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

In !mbudsman v. #alicia 3cited in t!e ponencia4 as 'ell as !mbudsman v. &standarte,* t!e Courtreco%ni5ed t!e concurrent =urisdiction o" t!e Division Sc!ool Superintendent vis-Y-vis t!eOuds&an to conduct preli&inar( investi%ation o" co&plaints o" %ra"t and corruption co&&itted #(

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pu#lic sc!ool teac!ers. Suc! concurrent =urisdiction o" t!e Division Sc!ool Superintendent 'as%ranted #( la', speci"icall( R6 +89 or t!e 0agna Carta "or Pu#lic Sc!ool eac!ers.+

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

Even t!e San%%unian% Panlun%sod !as concurrent =urisdiction 'it! t!e Ouds&an to loo$ intoco&plaints a%ainst t!e punon% #aran%a(.+) Suc! concurrent aut!orit( is "ound in R6 918 or t!eLocal 0overn&ent Code.

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

Certainl(, t!ere is a la', t!e 6d&inistrative Code, '!ic! aut!ori5ed t!e O""ice o" t!e President toexercise =urisdiction concurrent 'it! t!e Ouds&an to conduct preli&inar( investi%ation o" %ra"tand corruption cases. :o'ever, t!e scope and "ocus o" its preli&inar( investi%ation are restricted.

nder t!e principle t!at t!e po'er to appoint includes t!e po'er to re&ove, eac! President !as !ad!is or !er o'n version o" a presidential co&&ittee to investi%ate %ra"t and corruption, t!e last #ein%President 0loria ;acapa%al 6rro(oBs Presidential 6nti-0ra"t Co&&ission 3P60C4 under E.O. No.)8@. !e P60C exercised concurrent aut!orit( 'it! t!e Ouds&an to investi%ate co&plaints o"%ra"t and corruption a%ainst presidential appointees '!o are not i&peac!a#le o""icers and non-presidential appointees in conspirac( 'it! t!e latter. It is in t!is li%!t t!at 3!1 v. Camposano, etal .++ as cited in t!e ponencia s!ould #e understood. 6t t!at ti&e, t!e PC60C 3no' de"unct4 !ad noinvesti%ator( po'er over non-presidential appointeesA !ence t!e President created an ad-!occo&&ittee to investi%ate #ot! t!e principal respondent '!o 'as a presidential appointee and !er co-conspirators '!o 'ere non-presidential appointees. !e P60C 3no' also de"unct4, !o'ever, 'asaut!ori5ed to investi%ate #ot! presidential appointees and non-presidential appointees '!o 'ere inconspirac( 'it! eac! ot!er.

:o'ever, alt!ou%! pursuant to !is po'er o" control t!e President &a( supplant and directl( exerciset!e investi%ator( "unctions o" depart&ents and a%encies 'it!in t!e executive depart&ent,+ !is po'er o" control under t!e Constitution and t!e 6d&inistrative Code is con"ined onl( to t!e executivedepart&ent.+8 it!out an( la' aut!ori5in% !i&, t!e President cannot le%all( create a co&&ittee toextend !is investi%ator( reac! across t!e #oundaries o" t!e executive depart&ent to /pu#lic o""icersand e&plo(ees, t!eir co-principals, acco&plices and accessories "ro& t!e private sector, i" an(,durin% t!e previous ad&inistration/ 'it!out settin% apart t!ose '!o are still in t!e executivedepart&ent "ro& t!ose '!o are not. Onl( t!e Ouds&an !as t!e investi%ator( =urisdiction overt!e& under 6rticle ?I, Section 1*. !ere is no la' %rantin% to t!e President t!e aut!orit( to create aco&&ittee 'it! concurrent investi%ator( =urisdiction o" t!is nature.

!e President acted in violation o" t!e Constitution and 'it!out aut!orit( o" la' '!en !e created a

rut! Co&&ission under E.O. No. 1 to exercise concurrent =urisdiction 'it! t!e Ouds&an toconduct t!e preli&inar( investi%ation o" co&plaints o" %ra"t and corruption a%ainst pu#lic o""icers ande&plo(ees, t!eir co-principals, acco&plices and accessories "ro& t!e private sector, i" an(, durin%t!e previous ad&inistration.

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

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

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&easures to #e ta$en. Petitioners, !o'ever, ar%ue t!at t!e rut! Co&&ission is vested 'it!

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an(, '!en in t!e course o" its investi%ation t!e Co&&ission "inds t!at t!ere is reasona#le %round to#elieve t!e( are lia#le "or %ra"t and corruption under pertinent applica#le la'sA

x x x

!e po'ers to /evaluate evidence/ and /"ind reasona#le %round to #elieve t!at so&eone is lia#le "or

%ra"t and corruption/ are not &erel( "act-"indin% or investi%ator(. !ese are

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R!NATO C. CORONAC!ie" Justice

$oooe

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

) See as&in Na Carid%e niversit( PressA E.:.R.L.R., )@, ),)+-)9G de"ines a trut! co&&ission as an /ad !oc, autono&ous, and victi&-centeredco&&ission o" in

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continue to exercise le%islative po'er until a le%islature is elected and convened under ane' constitution x x x.

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

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

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

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

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

1@ I#id.

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

) O""ice o" t!e Ouds&an v. Sa&anie%o, 0.R. No. 199*, 11 Septeer )@.

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

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

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

)+  SCR6 +, 19+.

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

)8 Par. 8, La%&an, et alBs Petition

)9 Par. 89, La%&an, et alBs Petition

)@ OS0 ;e&orandu&, pp. @@-.

) Par. 9*, La%&an, et alBs Petition

*

 Section ). xxx #4 Collect, receive, revie' and evaluate evidence related to or re%ardin% t!ecases o" lar%e scale corruption '!ic! it !as c!osen to investi%ate, and to t!is end re

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investi%ation t!e Co&&ission "inds t!at t!ere is reasona#le %round to #elieve t!at t!e( arelia#le "or %ra"t and corruption under pertinent applica#le la's xxx.

*) Id.

** Section 19. !e President s!all !ave control o" all t!e executive depart&ents, #ureaus,

and o""ices. :e s!all ensure t!at t!e la's #e "ait!"ull( executed.

*+ 8@ SCR6 *)9 3)@4

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

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

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

*@ 6rticle ?I states>

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

x x x

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

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

+ See also &min v. 3e (eon 30.R. No. 1*9+, e#ruar( )9, )), *9@ SCR6 1+*4 on t!econcurrent aut!orit( o" t!e Civil Service Co&&ission and t!e DEPED Investi%atin%Co&&ittee under R6 +89. See "urt!er Puse v. antos5Puse 30.R. No. 1@*89@, ;arc! 1,)14 '!ere t!e Court !eld t!at t!e concurrent =urisdiction o" t!e DEPED and CSC to causepreli&inar( investi%ation is also s!ared #( t!e 2oard o" Pro"essional eac!ers under R69@*8 or P!ilippine eac!ers Pro"essionali5ation 6ct o" 1+.

+1 0.R. No. 199@, Octo#er 19, )@.

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

+* evilla 3ecin v. P!< 0el:asar ayco, et al ., 0.R. No. 1+1, e#ruar( 1+,)9A 1onasan 66 v. he Panel of 6nvestigating Prosecutors of the 3epartment of -ustice,0.R. No. 19+9,

 6pril 1*, )+.

++ 0.R. No. 198@+. 6pril )9, ).

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

 6u%ust +, 1.

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

+9 0.R. No. 88@1, ) Deceer 11, )+ SCR6 +@*.

+@ Id., pp. +-+8.

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

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

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

) Co=uan%co, Jr. v. Presidential Co&&ission on 0ood 0overn&ent, 0.R. Nos. )*1-), )Octo#er ), 1. !is is an En 2anc case t!at !ad #een reiterated in t'o ot!er En 2anccases, na&el(, Olivas v. O""ice o" t!e Ouds&an 30.R. No. 1)+), ) Deceer 1+4and ( v. O""ice o" t!e Ouds&an 30.R. Nos. 18*-+, )9 June )@, 8 SCR6 9*4.!us it cannot #e said to !ave #een overturned #( 2alan%auan v. Court " 6ppeals, SpecialNineteent! Division, Ce#u Cit( 30.R. No. 19+*, 1* 6u%ust )@, 8) SCR6 1@+4 adecision o" t!e Court t!rou%! t!e !ird Division '!erein t!e Court declared> /It &ust #ere&eered t!at a preli&inar( investi%ation is not a

314 On due process %roundsA

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

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

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

34 On t!e violation o" t!e e

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No. 1, Creatin% t!e P!ilippine rut! Co&&ission o" )1./ !e rut! Co&&issionBs express andavo'ed purpose is )

/to see$ and "ind t!e trut! on, and to'ard t!is end, investi%ate reports o" %ra"t and corruption o" suc!scale and &a%nitude t!at s!oc$ and o""end t!e &oral and et!ical sensi#ilities o" t!e people,co&&itted #( pu#lic o""icials and e&plo(ees, t!eir co-principals, acco&plices and accessories "ro&

t!e private sector, i" an(, durin% t!e previous ad&inistration, and t!erea"ter reco&&end t!eappropriate action to #e ta$en t!ereon to ensure t!at t!e "ull &easure o" =ustice s!all #e served'it!out "ear or "avor./

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

!e EO de"ines t!e rut! Co&&ission as an /independent colle%ial #od(/ 'it! a C!air&an and "our&eersA8and provides "or t!e sta"",9 "acilities@ and #ud%etar( support it can rel( on, all o" '!ic! aresourced "ro& or coursed t!rou%! t!e O""ice o" t!e President. It speci"icall( e&po'ers t!e rut!

Co&&ission to /collect, receive, revie' and evaluate evidence./1

 It de"ines !o' t!e Co&&ission 'illoperate and !o' its proceedin%s 'ill #e conducted.11 Nota#l(, its !earin%s s!all #e open to t!epu#lic, except onl( '!en t!e( are !eld in executive sessions "or reasons o" national securit(, pu#licsa"et( or '!en de&anded #( 'itnessesB personal securit( concerns.1) It is tas$ed to su#&it its"indin%s and reco&&endations on %ra"t and corruption to t!e President, Con%ress and t!eOuds&an,1* and su#&it special interi& reports and a co&pre!ensive "inal report '!ic! s!all #epu#lis!ed.1+ itnesses or resource persons are %iven t!e ri%!t to counsel,1 as 'ell as securit(protection to #e provided #( %overn&ent police a%encies.18

!e Rules o" Procedure o" t!e P!ilippine rut! Co&&ission o" )1 3Rules4, pro&ul%ated pursuantto Section )3=4 o" EO 1, "urt!er "les! out t!e operations o" t!e Co&&ission.19 Section + assures t!at/due process s!all at all ti&es #e o#served in t!e application o" t!e Rules./ It provides "or "or&alco&plaints t!at &a( #e "iled #e"ore it,1@and t!at a"ter evaluation, t!e parties '!o appear responsi#le

under t!e co&plaints s!all #e provided copies o" t!e co&plaints and supportin% docu&ents, and #ere

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Representatives. !ile c!ar%es o" !u&an ri%!ts violations &a( !ave #een lod%ed a%ainst t!e%overn&ent durin% t!e past ad&inistration, t!ese c!ar%es are not t!ose addressed #( EO1.)@ Rat!er, EO 1 "ocuses entirel( on %ra"t and corruption. Si%ni"icantl(, reconciliation does notappear to #e a %oal eit!er in t!e EO, in t!e pleadin%s "iled #( t!e parties, or in t!e oral ar%u&ents

  t!us, re&ovin% a =usti"ication "or an( &assive in"or&ation ca&pai%n ai&ed at !ealin% divisions t!at&a( exist in t!e nation.

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

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

#ased on t!e internationall(-reco%ni5ed conditions o" its use.No local la' li$e'ise speci"icall( pro!i#its or re%ulates t!e use o" t!e ter& /trut! co&&ission./ 6part"ro& t!e procedural /deviation/ a#ove adverted to, '!at &a( render t!e use o" t!e ter& le%all(o#=ectiona#le is t!e standard o" reason, applica#le to all %overn&ent actions, as applied to t!eattendant circu&stances surroundin% t!e use in t!e EO o" t!e title rut! Co&&ission.) !e use o"t!is standard is unavoida#le since t!e title rut! Co&&ission is used in a pu#lic instru&ent t!atde"ines t!e Co&&issionBs "unctions and a""ects #ot! t!e %overn&ent and private parties.* !eCo&&issionBs 'or$ a""ects t!ird parties as it is speci"icall( tas$ed to investi%ate and prosecuteo""icials and e&plo(ees o" t!e previous ad&inistration. !is line o" 'or$ e""ectivel( relates it to t!eprocesses o" t!e cri&inal =ustice s(ste&.

In t!e si&plest due process ter&s, t!e EO as a %overn&ental action &ust !ave a reasona#le

o#=ective and &ust use e

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

!e Solicitor 0eneral "ull( ver#ali5ed t!e trut!-tellin% "unction '!en !e declared t!at it is a &eans o"lettin% t!e people $no' t!e trut! in t!e alle%ations o" %ra"t and corruption a%ainst t!e pastad&inistration.* !e Solicitor 0eneral, in response to t!e

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EO and t!e rut! Co&&ission4 'is!es to tell t!e stor( o" t!e alle%edl( &assive %ra"t and corruptiondurin% t!e previous ad&inistration. !is is t!e distinct do&ain o" trut!-tellin% as t!e Solicitor 0eneral!i&sel" i&pliedl( ad&its in !is

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!is pro#le& sur"aced durin% t!e oral ar%u&ents on

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o return to t!e scenario descri#ed a#ove, it is t!is scenario t!at 'ill con"ront t!e Ouds&an '!ent!e Co&&issionBs report is su#&itted to it. 6t t!at point, t!ere 'ould !ave #een a "ull and extendedpu#lic de#ate !eavil( in"luenced #( t!e Co&&issionBs /trut!"ul/ conclusions. !us, '!en and i" t!eOuds&an "inds t!e evidence "ro& t!e report unconvincin% or #elo' t!e level t!at pro#a#le causere

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&a( arrive at. !is is a realit( t!at cannot #e dou#ted as t!e pu#lic !as #een exposed in t!e past tot!ese investi%ative co&&issions.

!e present rut! Co&&ission operatin% under t!e te