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G.R. No.

213847 August 18, 2015

JUAN PONCE ENRILE, Petitioner,


vs.
SANDIGANBAYAN (THIRD DIVISION), AND PEOPLE OF THE PHILIPPINES, Respondents.

DECISION

BERSAMIN, J.:

The decision whether to detain or release an accused before and during trial is ultimately an incident
of the judicial power to hear and determine his criminal case. The strength of the Prosecution's case,
albeit a good measure of the accuseds propensity for flight or for causing harm to the public, is
subsidiary to the primary objective of bail, which is to ensure that the accused appears at trial.1

The Case

Before the Court is the petition for certiorari filed by Senator Juan Ponce Enrile to assail and annul
the resolutions dated July 14, 20142 and August 8, 20143 issued by the Sandiganbayan (Third
Division) in Case No. SB-14-CRM-0238, where he has been charged with plunder along with several
others. Enrile insists that the resolutions, which respectively denied his Motion To Fix Bail and his
Motion For Reconsideration, were issued with grave abuse of discretion amounting to lack or excess
of jurisdiction.

Antecedents

On June 5, 2014, the Office of the Ombudsman charged Enrile and several others with plunder in
the Sandiganbayan on the basis of their purported involvement in the diversion and misuse of
appropriations under the Priority Development Assistance Fund (PDAF).4 On June 10, 2014 and
June 16, 2014, Enrile respectively filed his Omnibus Motion5 and Supplemental Opposition,6 praying,
among others, that he be allowed to post bail should probable cause be found against him. The
motions were heard by the Sandiganbayan after the Prosecution filed its Consolidated Opposition.7

On July 3, 2014, the Sandiganbaya n issued its resolution denying Enriles motion, particularly on
the matter of bail, on the ground of its prematurity considering that Enrile had not yet then voluntarily
surrendered or been placed under the custody of the law.8 Accordingly, the Sandiganbayan ordered
the arrest of Enrile.9

On the same day that the warrant for his arrest was issued, Enrile voluntarily surrendered to Director
Benjamin Magalong of the Criminal Investigation and Detection Group (CIDG) in Camp Crame,
Quezon City, and was later on confined at the Philippine National Police (PNP) General Hospital
following his medical examination.10

Thereafter, Enrile filed his Motion for Detention at the PNP General Hospital ,11 and his Motion to Fix
Bail ,12 both dated July 7, 2014, which were heard by the Sandiganbayan on July 8, 2014.13 In support
of the motions, Enrile argued that he should be allowed to post bail because: (a) the Prosecution had
not yet established that the evidence of his guilt was strong; (b) although he was charged with
plunder, the penalty as to him would only be reclusion temporal , not reclusion perpetua ; and (c) he
was not a flight risk, and his age and physical condition must further be seriously considered.
On July 14, 2014, the Sandiganbayan issued its first assailed resolution denying Enriles Motion to
Fix Bail, disposing thusly:

x x x [I]t is only after the prosecution shall have presented its evidence and the Court shall have
made a determination that the evidence of guilt is not strong against accused Enrile can he demand
bail as a matter of right. Then and only then will the Court be duty-bound to fix the amount of his bail.

To be sure, no such determination has been made by the Court. In fact, accused Enrile has not filed
an application for bail. Necessarily, no bail hearing can even commence. It is thus exceedingly
premature for accused Enrile to ask the Court to fix his bail.

Accused Enrile next argues that the Court should grant him bail because while he is charged with
plunder, "the maximum penalty that may be possibly imposed on him is reclusion temporal, not
reclusion perpetua." He anchors this claim on Section 2 of R.A. No. 7080, as amended, and on the
allegation that he is over seventy (70) years old and that he voluntarily surrendered. "Accordingly, it
may be said that the crime charged against Enrile is not punishable by reclusion perpetua, and thus
bailable."

The argument has no merit.

x x x [F]or purposes of bail, the presence of mitigating circumstance/s is not taken into consideration.
These circumstances will only be appreciated in the imposition of the proper penalty after trial should
the accused be found guilty of the offense charged. x x x

Lastly, accused Enrile asserts that the Court should already fix his bail because he is not a flight risk
and his physical condition must also be seriously considered by the Court.

Admittedly, the accuseds age, physical condition and his being a flight risk are among the factors
that are considered in fixing a reasonable amount of bail. However, as explained above, it is
premature for the Court to fix the amount of bail without an anterior showing that the evidence of
guilt against accused Enrile is not strong.

WHEREFORE, premises considered, accused Juan Ponce Enriles Motion to Fix Bail dated July 7,
2014 is DENIED for lack of merit.

SO ORDERED.14

On August 8, 2014, the Sandiganbayan issued it s second assailed resolution to deny Enriles
motion for reconsideration filed vis--vis the July 14, 2014 resolution.15

Enrile raises the following grounds in support of his petition for certiorari , namely:

A. Before judgment of the Sandiganbayan, Enrile is bailable as a matter of right. Enrile


may be deemed to fall within the exception only upon concurrence of two (2)
circumstances: (i) where the offense is punishable by reclusion perpetua, and (ii)
when evidence of guilt is strong.

B. The prosecution failed to show clearly and conclusively that Enrile, if ever he would
be convicted, is punishable by reclusion perpetua; hence, Enrile is entitled to bail as a
matter of right.
C. The prosecution failed to show clearly and conclusively that evidence of Enriles
guilt (if ever) is strong; hence, Enrile is entitled to bail as a matter of right.

D. At any rate, Enrile may be bailable as he is not a flight risk.16

Enrile claims that before judgment of conviction, an accused is entitled to bail as matter of right; th at
it is the duty and burden of the Prosecution to show clearly and conclusively that Enrile comes under
the exception and cannot be excluded from enjoying the right to bail; that the Prosecution has failed
to establish that Enrile, if convicted of plunder, is punishable by reclusion perpetua considering the
presence of two mitigating circumstances his age and his voluntary surrender; that the Prosecution
has not come forward with proof showing that his guilt for the crime of plunder is strong; and that he
should not be considered a flight risk taking into account that he is already over the age of 90, his
medical condition, and his social standing.

In its Comment ,17 the Ombudsman contends that Enriles right to bail is discretionary as he is
charged with a capital offense; that to be granted bail, it is mandatory that a bail hearing be
conducted to determine whether there is strong evidence of his guilt, or the lack of it; and that
entitlement to bail considers the imposable penalty, regardless of the attendant circumstances.

Ruling of the Court

The petition for certiorari is meritorious.

1.
Bail protects the right of the accused to
due process and to be presumed innocent

In all criminal prosecutions, the accused shall be presumed innocent until the contrary is
proved.18 The presumption of innocence is rooted in the guarantee of due process, and is
safeguarded by the constitutional right to be released on bail,19 and further binds the court to wait
until after trial to impose any punishment on the accused.20

It is worthy to note that bail is not granted to prevent the accused from committing additional
crimes.[[21] The purpose of bail is to guarantee the appearance of the accused at the trial, or
whenever so required by the trial court. The amount of bail should be high enough to assure the
presence of the accused when so required, but it should be no higher than is reasonably calculated
to fulfill this purpose.22 Thus, bail acts as a reconciling mechanism to accommodate both the
accuseds interest in his provisional liberty before or during the trial, and the societys interest in
assuring the accuseds presence at trial.23

2.
Bail may be granted as a
matter of right or of discretion

The right to bail is expressly afforded by Section 13, Article III (Bill of Rights) of the Constitution, viz.:

x x x All persons, except those charged with offenses punishable by reclusion perpetua when
evidence of guilt is strong, shall, before conviction, be bailable by sufficient sureties, or be released
on recognizance as may be provided by law. The right to bail shall not be impaired even when the
privilege of the writ of habeas corpus is suspended. Excessive bail shall not be required.
This constitutional provision is repeated in Section 7, Rule 11424 of the Rules of Court , as follows:

Section 7. Capital offense or an offense punishable by reclusion perpetua or life imprisonment, not
bailable. No person charged with a capital offense, or an offense punishable by reclusion
perpetua or life imprisonment, shall be admitted to bail when evidence of guilt is strong, regardless
of the stage of the criminal prosecution.

A capital offense in the context of the rule refers to an offense that, under the law existing at the time
of its commission and the application for admission to bail, may be punished with death.25

The general rule is, therefore, that any person, before being convicted of any criminal offense, shall
be bailable, unless he is charged with a capital offense, or with an offense punishable with reclusion
perpetua or life imprisonment, and the evidence of his guilt is strong. Hence, from the moment he is
placed under arrest, or is detained or restrained by the officers of the law, he can claim the
guarantee of his provisional liberty under the Bill of Rights, and he retains his right to bail unless he
is charged with a capital offense, or with an offense punishable with reclusion perpetua or life
imprisonment, and the evidence of his guilt is strong.26 Once it has been established that the
evidence of guilt is strong, no right to bail shall be recognized.27

As a result, all criminal cases within the competence of the Metropolitan Trial Court, Municipal Trial
Court, Municipal Trial Court in Cities, or Municipal Circuit Trial Court are bailable as matter of right
because these courts have no jurisdiction to try capital offenses, or offenses punishable with
reclusion perpetua or life imprisonment. Likewise, bail is a matter of right prior to conviction by the
Regional Trial Court (RTC) for any offense not punishable by death, reclusion perpetua , or life
imprisonment, or even prior to conviction for an offense punishable by death, reclusion perpetua , or
life imprisonment when evidence of guilt is not strong.28

On the other hand, the granting of bail is discretionary: (1) upon conviction by the RTC of an offense
not punishable by death, reclusion perpetua or life imprisonment;29 or (2) if the RTC has imposed a
penalty of imprisonment exceeding six years, provided none of the circumstances enumerated under
paragraph 3 of Section 5, Rule 114 is present, as follows:

(a) That he is a recidivist, quasi-recidivist, or habitual delinquent, or has committed the crime
aggravated by the circumstance of reiteration;

(b) That he has previously escaped from legal confinement, evaded sentence, or violated the
conditions of his bail without valid justification;

(c) That he committed the offense while under probation, parole, or conditional pardon;

(d) That the circumstances of hi s case indicate the probability of flight if released on bail; or

(e) That there is undue risk that he may commit another crime during the pendency of the
appeal.

3.
Admission to bail in offenses punished
by death, or life imprisonment, or reclusion
perpetua is subject to judicial discretion
For purposes of admission to bail, the determination of whether or not evidence of guilt is strong in
criminal cases involving capital offenses, or offenses punishable with reclusion perpetua or life
imprisonment lies within the discretion of the trial court. But, as the Court has held in Concerned
Citizens v. Elma ,30 "such discretion may be exercised only after the hearing called to ascertain the
degree of guilt of the accused for the purpose of whether or not he should be granted provisional
liberty." It is axiomatic, therefore, that bail cannot be allowed when its grant is a matter of discretion
on the part of the trial court unless there has been a hearing with notice to the Prosecution.31 The
indispensability of the hearing with notice has been aptly explained in Aguirre v. Belmonte, viz. :32

x x x Even before its pronouncement in the Lim case, this Court already ruled in People vs.
Dacudao, etc., et al. that a hearing is mandatory before bail can be granted to an accused who is
charged with a capital offense, in this wise:

The respondent court acted irregularly in granting bail in a murder case without any hearing on the
motion asking for it, without bothering to ask the prosecution for its conformity or comment, as it
turned out later, over its strong objections. The court granted bail on the sole basis of the complaint
and the affidavits of three policemen, not one of whom apparently witnessed the killing. Whatever
the court possessed at the time it issued the questioned ruling was intended only for prima facie
determining whether or not there is sufficient ground to engender a well-founded belief that the crime
was committed and pinpointing the persons who probably committed it. Whether or not the evidence
of guilt is strong for each individual accused still has to be established unless the prosecution
submits the issue on whatever it has already presented. To appreciate the strength or weakness of
the evidence of guilt, the prosecution must be consulted or heard. It is equally entitled as the
accused to due process.

Certain guidelines in the fixing of a bailbond call for the presentation of evidence and reasonable
opportunity for the prosecution to refute it. Among them are the nature and circumstances of the
crime, character and reputation of the accused, the weight of the evidence against him, the
probability of the accused appearing at the trial, whether or not the accused is a fugitive from justice,
and whether or not the accused is under bond in other cases. (Section 6, Rule 114, Rules of Court)
It is highly doubtful if the trial court can appreciate these guidelines in an ex-parte determination
where the Fiscal is neither present nor heard.

The hearing, which may be either summary or otherwise, in the discretion of the court, should
primarily determine whether or not the evidence of guilt against the accused is strong. For this
purpose, a summary hearing means:

x x x such brief and speedy method of receiving and considering the evidence of guilt as is
practicable and consistent with the purpose of hearing which is merely to determine the weight of
evidence for purposes of bail. On such hearing, the court does not sit to try the merits or to enter into
any nice inquiry as to the weight that ought to be allowed to the evidence for or against the accused,
nor will it speculate on the outcome of the trial or on what further evidence may be therein offered or
admitted. The course of inquiry may be left to the discretion of the court which may confine itself to
receiving such evidence as has reference to substantial matters, avoiding unnecessary
thoroughness in the examination and cross examination.33

In resolving bail applications of the accused who is charged with a capital offense, or an offense
punishable by reclusion perpetua or life imprisonment, the trial judge is expected to comply with the
guidelines outlined in Cortes v. Catral,34 to wit:
1. In all cases, whether bail is a matter of right or of discretion, notify the prosecutor of the
hearing of the application for bail or require him to submit his recommendation (Section 18,
Rule 114 of the Rules of Court, as amended);

2. Where bail is a matter of discretion, conduct a hearing of the application for bail regardless
of whether or not the prosecution refuses to present evidence to show that the guilt of the
accused is strong for the purpose of enabling the court to exercise its sound discretion;
(Section 7 and 8, supra)

3. Decide whether the guilt of the accused is strong based on the summary of evidence of
the prosecution;

4. If the guilt of the accused is no t strong, discharge the accused upon the approval of the
bailbond (Section 19, supra) Otherwise petition should be denied.

3.
Enriles poor health justifies his admission to bail

We first note that Enrile has averred in his Motion to Fix Bail the presence of two mitigating
circumstances that should be appreciated in his favor, namely: that he was already over 70 years at
the time of the alleged commission of the offense, and that he voluntarily surrendered.35

Enriles averment has been mainly uncontested by the Prosecution, whose Opposition to the Motion
to Fix Bail has only argued that

8. As regards the assertion that the maximum possible penalty that might be imposed upon Enrile is
only reclusion temporal due to the presence of two mitigating circumstances, suffice it to state that
the presence or absence of mitigating circumstances is also not consideration that the Constitution
deemed worthy. The relevant clause in Section 13 is "charged with an offense punishable by." It is,
therefore, the maximum penalty provided by the offense that has bearing and not the possibility of
mitigating circumstances being appreciated in the accuseds favor.36

Yet, we do not determine now the question of whether or not Enriles averment on the presence of
the two mitigating circumstances could entitle him to bail despite the crime alleged against him being
punishable with reclusion perpetua ,37 simply because the determination, being primarily factual in
context, is ideally to be made by the trial court.

Nonetheless, in now granting Enriles petition for certiorari, the Court is guided by the earlier
mentioned principal purpose of bail, which is to guarantee the appearance of the accused at the trial,
or whenever so required by the court. The Court is further mindful of the Philippines responsibility in
the international community arising from the national commitment under the Universal Declaration of
Human Rights to:

x x x uphold the fundamental human rights as well as value the worth and dignity of every person.
This commitment is enshrined in Section II, Article II of our Constitution which provides: "The State
values the dignity of every human person and guarantees full respect for human rights." The
Philippines, therefore, has the responsibility of protecting and promoting the right of every person to
liberty and due process, ensuring that those detained or arrested can participate in the proceedings
before a court, to enable it to decide without delay on the legality of the detention and order their
release if justified. In other words, the Philippine authorities are under obligation to make available to
every person under detention such remedies which safeguard their fundamental right to liberty.
These remedies include the right to be admitted to bail.38
This national commitment to uphold the fundamental human rights as well as value the worth and
dignity of every person has authorized the grant of bail not only to those charged in criminal
proceedings but also to extraditees upon a clear and convincing showing: (1 ) that the detainee will
not be a flight risk or a danger to the community; and (2 ) that there exist special, humanitarian and
compelling circumstances.39

In our view, his social and political standing and his having immediately surrendered to the
authorities upon his being charged in court indicate that the risk of his flight or escape from this
jurisdiction is highly unlikely. His personal disposition from the onset of his indictment for plunder,
formal or otherwise, has demonstrated his utter respect for the legal processes of this country. We
also do not ignore that at an earlier time many years ago when he had been charged with rebellion
with murder and multiple frustrated murder, he already evinced a similar personal disposition of
respect for the legal processes, and was granted bail during the pendency of his trial because he
was not seen as a flight risk.40 With his solid reputation in both his public and his private lives, his
long years of public service, and historys judgment of him being at stake, he should be granted bail.

The currently fragile state of Enriles health presents another compelling justification for his
admission to bail, but which the Sandiganbayan did not recognize.

In his testimony in the Sandiganbayan,41 Dr. Jose C. Gonzales, the Director of the Philippine General
Hospital (PGH), classified Enrile as a geriatric patient who was found during the medical
examinations conducted at the UP-PGH to be suffering from the following conditions:

(1) Chronic Hypertension with fluctuating blood pressure levels on multiple drug therapy;
(Annexes 1.1, 1.2, 1.3);

(2) Diffuse atherosclerotic cardiovascular disease composed of the following :

a. Previous history of cerebrovascular disease with carotid and vertebral artery


disease ; (Annexes 1.4, 4.1)

b. Heavy coronary artery calcifications; (Annex 1.5)

c. Ankle Brachial Index suggestive of arterial calcifications. (Annex 1.6)

(3) Atrial and Ventricular Arrhythmia (irregular heart beat) documented by Holter monitoring ;
(Annexes 1.7.1, 1.7.2)

(4) Asthma-COPD Overlap Syndrom (ACOS) and postnasal drip syndrome; (Annexes 2.1,
2.2)

(5) Ophthalmology:

a. Age-related mascular degeneration, neovascular s/p laser of the Retina, s/p


Lucentis intra-ocular injections; (Annexes 3.0, 3.1, 3.2)

b. S/p Cataract surgery with posterior chamber intraocular lens. (Annexes 3.1, 3.2)

(6) Historical diagnoses of the following:

a. High blood sugar/diabetes on medications;


b. High cholesterol levels/dyslipidemia;

c. Alpha thalassemia;

d. Gait/balance disorder;

e. Upper gastrointestinal bleeding (etiology uncertain) in 2014;

f. Benign prostatic hypertrophy (with documented enlarged prostate on recent


ultrasound).42

Dr. Gonzales attested that the following medical conditions, singly or collectively, could pose
significant risk s to the life of Enrile, to wit: (1) uncontrolled hypertension, because it could lead to
brain or heart complications, including recurrence of stroke; (2) arrhythmia, because it could lead to
fatal or non-fatal cardiovascular events, especially under stressful conditions; (3) coronary
calcifications associated with coronary artery disease, because they could indicate a future risk for
heart attack under stressful conditions; and (4) exacerbations of ACOS, because they could be
triggered by certain circumstances (like excessive heat, humidity, dust or allergen exposure) which
could cause a deterioration in patients with asthma or COPD.43

Based on foregoing, there is no question at all that Enriles advanced age and ill health required
special medical attention. His confinement at the PNP General Hospital, albeit at his own
instance,44 was not even recommended by the officer-in-charge (O IC) and the internist doctor of that
medical facility because of the limitations in the medical support at that hospital. Their testimonies
ran as follows:

JUSTICE MARTIRES:

The question is, do you feel comfortable with the continued confinement of Senator Enrile at the
Philippine National Police Hospital?

DR. SERVILLANO:

No, Your Honor.

JUSTICE MARTIRES:

Director, doctor, do you feel comfortable with the continued confinement of Senator Enrile at the
PNP Hospital ?

PSUPT. JOCSON:

No, Your Honor.

JUSTICE MARTIRES:

Why?

PSUPT. JOCSON:
Because during emergency cases, Your Honor, we cannot give him the best.

JUSTICE MARTIRES:

At present, since you are the attending physician of the accused, Senator Enrile, are you happy or
have any fear in your heart of the present condition of the accused vis a vis the facilities of the
hospital?

DR. SERVILLANO:

Yes, Your Honor. I have a fear.

JUSTICE MARTIRES:

That you will not be able to address in an emergency situation?

DR. SERVILLANO:

Your Honor, in case of emergency situation we can handle it but probably if the condition of the
patient worsen, we have no facilities to do those things, Your Honor.45

Bail for the provisional liberty of the accused, regardless of the crime charged, should be allowed
independently of the merits of the charge, provided his continued incarceration is clearly shown to be
injurious to his health or to endanger his life. Indeed, denying him bail despite imperiling his health
and life would not serve the true objective of preventive incarceration during the trial.

Granting bail to Enrile on the foregoing reasons is not unprecedented. The Court has already held in
Dela Rama v. The Peoples Court:46

x x x This court, in disposing of the first petition for certiorari, held the following:

x x x [ U]nless allowance of bail is forbidden by law in the particular case, the illness of the prisoner,

independently of the merits of the case, is a circumstance, and the humanity of the law makes it a
consideration which should, regardless of the charge and the stage of the proceeding, influence the
court to exercise its discretion to admit the prisoner to bail ;47

xxx

Considering the report of the Medical Director of the Quezon Institute to the effect that the petitioner
"is actually suffering from minimal, early, unstable type of pulmonary tuberculosis, and chronic,
granular pharyngitis," and that in said institute they "have seen similar cases, later progressing into
advance stages when the treatment and medicine are no longer of any avail;" taking into
consideration that the petitioners previous petition for bail was denied by the Peoples Court on the
ground that the petitioner was suffering from quiescent and not active tuberculosis, and the implied
purpose of the Peoples Court in sending the petitioner to the Quezon Institute for clinical
examination and diagnosis of the actual condition of his lungs, was evidently to verify whether the
petitioner is suffering from active tuberculosis, in order to act accordingly in deciding his petition for
bail; and considering further that the said Peoples Court has adopted and applied the well-
established doctrine cited in our above-quoted resolution, in several cases, among them, the cases
against Pio Duran (case No. 3324) and Benigno Aquino (case No. 3527), in which the said
defendants were released on bail on the ground that they were ill and their continued confinement in
New Bilibid Prison would be injurious to their health or endanger their life; it is evident and we
consequently hold that the Peoples Court acted with grave abuse of discretion in refusing to re
lease the petitioner on bail.48

It is relevant to observe that granting provisional liberty to Enrile will then enable him to have his
medical condition be properly addressed and better attended to by competent physicians in the
hospitals of his choice. This will not only aid in his adequate preparation of his defense but, more
importantly , will guarantee his appearance in court for the trial.

On the other hand, to mark time in order to wait for the trial to finish before a meaningful
consideration of the application for bail can be had is to defeat the objective of bail, which is to entitle
the accused to provisional liberty pending the trial. There may be circumstances decisive of the
issue of bail whose existence is either admitted by the Prosecution, or is properly the subject of
judicial notice that the courts can already consider in resolving the application for bail without
awaiting the trial to finish.49 The Court thus balances the scales of justice by protecting the interest of
the People through ensuring his personal appearance at the trial, and at the same time realizing for
him the guarantees of due process as well as to be presumed innocent until proven guilty.

Accordingly, we conclude that the Sandiganbayan arbitrarily ignored the objective of bail to ensure
the appearance of the accused during the trial; and unwarrantedly disregarded the clear showing of
the fragile health and advanced age of Enrile. As such, the Sandiganbayan gravely abused its
discretion in denying Enriles Motion To Fix Bail. Grave abuse of discretion, as the ground for the
issuance of the writ of certiorari , connotes whimsical and capricious exercise of judgment as is
equivalent to excess, or lack of jurisdiction.50 The abuse must be so patent and gross as to amount to
an evasion of a positive duty or to a virtual refusal to perform a duty enjoined by law, or to act at all
in contemplation of law as where the power is exercised in an arbitrary and despotic manner by
reason of passion or hostility.51 WHEREFORE, the Court GRANTS the petition for certiorari ;
ISSUES the writ of certiorari ANNULING and SETTING ASIDE the Resolutions issued by the
Sandiganbayan (Third Division) in Case No. SB-14 CRM-0238 on July 14, 2014 and August 8, 2014;
ORDERS the PROVISIONAL RELEASE of petitioner Juan Ponce Enrile in Case No. SB-14-CRM-
0238 upon posting of a cash bond of P1,000,000.00 in the Sandiganbayan; and DIRECTS the
immediate release of petitioner Juan Ponce Enrile from custody unless he is being detained for
some other lawful cause.

No pronouncement on costs of suit.

SO ORDERED.

G.R. No. 213455, August 11, 2015

JUAN PONCE ENRILE, Petitioner, v. PEOPLE OF THE PHILIPPINES, HON. AMPARO M. CABOTAJE-
TANG, HON. SAMUEL R. MARTIRES, AND HON. ALEX L. QUIROZ OF THE THIRD DIVISION OF THE
SANDIGANBAYAN, Respondents.

DECISION

BRION, J.:

We resolve the petition for certiorari with prayers (a) for the Court En Banc to act on the petition; (b) to
expedite the proceedings and to set the case for oral arguments; and (c) to issue a temporary restraining
order to the respondents from holding a pre-trial and further proceedings in Criminal Case No. SB-14-CRM-
02381 filed by petitioner Juan Ponce Enrile (Enrile) challenging the July 11, 2014 resolutions2 of the
Sandiganbayan.

I.

THE ANTECEDENTS

On June 5, 2014, the Office of the Ombudsman filed an Information3 for plunder against Enrile, Jessica
Lucila Reyes, Janet Lim Napoles, Ronald John Lim, and John Raymund de Asis before the Sandiganbayan.

The Information reads: LawlibraryofCR Alaw

xxxx

In 2004 to 2010 or thereabout, in the Philippines, and within this Honorable Courts jurisdiction, above-
named accused JUAN PONCE ENRILE, then a Philippine Senator, JESSICA LUCILA G. REYES, then Chief of
Staff of Senator Enriles Office, both public officers, committing the offense in relation to their respective
offices, conspiring with one another and with JANET LIM NAPOLES, RONALD JOHN LIM, and JOHN RAYMUND
DE ASIS, did then and there willfully, unlawfully, and criminally amass, accumulate, and/or acquire ill-gotten
wealth amounting to at least ONE HUNDRED SEVENTY TWO MILLION EIGHT HUNDRED THIRTY FOUR
THOUSAND FIVE HUNDRED PESOS (Php172,834,500.00) through a combination or series of overt criminal
acts, as follows:
Lawlib raryofCR Alaw

(a) by repeatedly receiving from NAPOLES and/or her representatives LIM,


DE ASIS, and others, kickbacks or commissions under the following
circumstances: before, during and/or after the project identification,
NAPOLES gave, and ENRILE and/or REYES received, a percentage of the
cost of a project to be funded from ENRILES Priority Development
Assistance Fund (PDAF), in consideration of ENRILES endorsement,
directly or through REYES, to the appropriate government agencies, of
NAPOLES non-government organizations which became the recipients
and/or target implementors of ENRILES PDAF projects, which duly-
funded projects turned out to be ghosts or fictitious, thus enabling
NAPOLES to misappropriate the PDAF proceeds for her personal gain;

(b) by taking undue advantage, on several occasions, of their official


positions, authority, relationships, connections, and influence to unjustly
enrich themselves at the expense and to the damage and prejudice, of
the Filipino people and the Republic of the Philippines.
CONTRARY TO LAW.
Enrile responded by filing before the Sandiganbayan (1) an urgent omnibus motion (motion to dismiss for
lack of evidence on record to establish probable cause and ad cautelam motion for bail),4 and (2)
a supplemental opposition to issuance of warrant of arrest and for dismissal of Information,5 on June 10,
2014, and June 16, 2014, respectively. The Sandiganbayan heard both motions on June 20, 2014.

On June 24, 2014, the prosecution filed a consolidated opposition to both motions.

On July 3, 2014, the Sandiganbayan denied Enriles motions and ordered the issuance of warrants of arrest
on the plunder case against the accused.6 redarclaw

On July 8, 2014, Enrile received a notice of hearing7 informing him that his arraignment would be held
before the Sandiganbayans Third Division on July 11, 2014.

On July 10, 2014, Enrile filed a motion for bill of particulars8 before the Sandiganbayan. On the same
date, he filed a motion for deferment of arraignment9 since he was to undergo medical examination at the
Philippine General Hospital (PGH).

On July 11, 2014, Enrile was brought to the Sandiganbayan pursuant to the Sandiganbayans order and
his motion for bill of particulars was called for hearing. Atty. Estelito Mendoza (Atty. Mendoza), Enriles
counsel, argued the motion orally. Thereafter, Sandiganbayan Presiding Justice (PJ) Amparo Cabotaje-Tang
(Cabotaje-Tang), declared a 10-minute recess to deliberate on the motion.

When the court session resumed, PJ Cabotaje-Tang announced the Courts denial of Enriles motion for bill
of particulars essentially on the following grounds:

(1) the details that Enrile desires are substantial reiterations of the
arguments he raised in his supplemental opposition to the
issuance of warrant of arrest and for dismissal of
information; and

(2) the details sought are evidentiary in nature and are best
ventilated during trial.
Atty. Mendoza asked for time to file a motion for reconsideration, stating that he would orally move to
reconsider the Sandiganbayans denial if he would not be given time to seek a reconsideration. The
Sandiganbayan then directed Atty. Mendoza to immediately proceed with his motion for reconsideration.

Atty. Mendoza thus orally presented his arguments for the reconsideration of the denial of Enriles motion for
bill of particulars. The Sandiganbayan again declared a recess to deliberate on the motion. After five (5)
minutes, PJ Cabotaje-Tang announced the Sandiganbayans denial of the motion for reconsideration.10 reda rc law

The Sandiganbayan reduced its rulings into writing on Enriles written and oral motions. The pertinent
portion of this ruling reads:
Lawlib ra ryofCRAlaw

xxxx

In todays consideration of accused Juan Ponce Enriles Motion for Bill of Particulars, the Court heard the
parties on oral arguments in relation thereto. Thereafter, it declared a ten-minute recess to deliberate
thereon. After deliberating on the said motion as well as the arguments of the parties, the Court resolves
to DENY as it hereby DENIES the same motion for bill of particulars for the following reasons: (1) the
details desired in paragraphs 2 to 5 of the said motion are substantially reiterations of the arguments raised
by accused Enrile in his Supplemental Opposition to Issuance of Warrant of Arrest and for Dismissal of
Information dated June 16, 2014 x x x.

The Court already upheld the sufficiency of the allegations in the Information charging accused Enrile,
among other persons, with the crime of plunder in its Resolution dated July 3, 2014. It finds no cogent
reasons to reconsider the said ruling.

Moreover, the desired details that accused Enrile would like the prosecution to provide are evidentiary in
nature, which need not be alleged in the Information. They are best ventilated during the trial of the case.

Counsel for accused Juan Ponce Enrile orally sought a reconsideration of the denial of his motion for bill of
particulars which was opposed by the prosecution. The Court then declared another ten-minute recess to
deliberate on the said motion for reconsideration. After deliberation thereon, the Court likewise resolved
to DENY as it hereby DENIES accused Juan Ponce Enriles motion for reconsideration there being no new or
substantial grounds raised to warrant the grant thereof.

ACCORDINGLY, the scheduled arraignment of accused Juan Ponce Enrile shall now proceed as previously
scheduled.

SO ORDERED.11
Atty. Mendoza subsequently moved for the deferment of Enriles arraignment. The Sandiganbayan
responded by directing the doctors present to determine whether he was physically fit to be arraigned. After
he was declared fit, the Sandiganbayan proceeded with Enriles arraignment. Enrile entered a no plea,
prompting the Sandiganbayan to enter a not guilty plea on his behalf.
II.

THE PETITION FOR CERTIORARI

Enrile claims in this petition that the Sandiganbayan acted with grave abuse of discretion amounting to lack
or excess of jurisdiction when it denied his motion for bill of particulars despite the ambiguity and
insufficiency of the Information filed against him. Enrile maintains that the denial was a serious violation of
his constitutional right to be informed of the nature and cause of the accusation against him.

Enrile further alleges that he was left to speculate on what his specific participation in the crime of plunder
had been. He posits that the Information should have stated the details of the particular acts that allegedly
constituted the imputed series or combination of overt acts that led to the charge of plunder. Enrile
essentially reiterates the details desired that he sought in his motion for bill of particulars, as follows:
Lawli bra ryofCRAlaw

Allegations of Information Details Desired


x x x accused JUAN PONCE a. Who among the accused acquired the
ENRILE, then a Philippine alleged ill-gotten wealth amounting to
Senator, JESSICA LUCILA G. at least ONE HUNDRED SEVENTY TWO
REYES, then Chief of Staff of MILLION EIGHT HUNDRED THIRTY FOUR
Senator Enriles Office, both THOUSAND FIVE HUNDRED PESOS
public officers, committing the (Php172,834,500.00)? One of them,
offense in relation to their two of them or all of them? Kindly
respective offices, conspiring with specify.
one another and with JANET LIM
NAPOLES, RONALD JOHN LIM,
and JOHN RAYMUND DE ASIS, did
then and there willfully,
unlawfully, and criminally amass,
accumulate, and/or acquire ill-
gotten wealth amounting to at
least ONE HUNDRED SEVENTY
TWO MILLION EIGHT HUNDRED
THIRTY FOUR THOUSAND FIVE
HUNDRED PESOS
(Php172,834,500.00) through a
combination or series of overt
acts, x x x.

b. The allegation through a combination


or series of overt criminal acts is a
conclusion of fact or of law. What are
the particular overt acts which
constitute the combination? What are
the particular overt acts which
constitute the series? Who committed
those acts?
x x x by repeatedly receiving a. What was repeatedly received? If
from NAPOLES and/or her sums of money, the particular amount.
representatives LIM, DE ASIS, If on several occasions and in different
and others, kickbacks or amounts, specify the amount on each
commissions under the following occasion and the corresponding date of
circumstances: before, during receipt.
and/or after the project
identification, NAPOLES gave, and
ENRILE and/or REYES received, a
percentage of the cost of a
project to be funded from
ENRILES Priority Development
Assistance Fund (PDAF), in
consideration of ENRILES
endorsement, directly or through
REYES, to the appropriate
government agencies, of
NAPOLES non-government
organizations which became the
recipients and/or target
implementers of ENRILES PDAF
projects, which duly-funded
projects turned out to be ghosts
or fictitious, thus enabling
NAPOLES to misappropriate the
PDAF proceeds for her personal
gain;

b. Name the specific person(s) who


delivered the amount of
Php172,834,500.00 and the specific
person(s) who received the amount; or
if not in lump sum, the various amounts
totaling Php172,834,500.00. x x x
Specify particularly the person who
delivered the amount, Napoles or Lim or
De Asis, and who particularly are the
others.

c. To whom was the money given? To


Enrile or Reyes? State the amount given
on each occasion, the date when and
the place where the amount was given.
d. x x x Describe each project allegedly
identified, how, and by whom was the
project identified, the nature of each
project, where it is located and the cost
of each project.

e. For each of the years 2004-2010,


under what law or official document is a
portion of the Priority Development
Assistance Fund identified as that of a
member of Congress, in this instance, as
ENRILEs, to be found? In
what amount for each year is ENRILEs
Priority Development Assistance Fund?
When, and to whom, did Enrile endorse
the projects in favor of Napoles non-
government organizations which became
the recipients and/or target
implementers of ENRILEs PDAF
projects? Name Napoles non-
government organizations which became
the recipients and/or target
implementers of ENRILEs PDAF
projects. Who paid Napoles, from
whom did Napoles collect the fund for
the projects which turned out to be
ghosts or fictitious? Who authorized the
payments for each project?

f. x x x what COA audits or field


investigations were conducted which
validated the findings that each of
Enriles PDAF projects in the years
2004-2010 were ghosts or spurious
projects?

x x x by taking undue advantage, a. Provide the details of how Enrile took


on several occasions of their undue advantage, on several occasions,
official positions, authority, of his official positions, authority,
relationships, connections, and relationships, connections, and influence
influence to unjustly enrich to unjustly enrich himself at the expense
themselves at the expense and to and to the damage and prejudice, of the
the damage and prejudice, of the Filipino people and the Republic of the
Filipino people and the Republic Philippines. Was this because
of the Philippines. he received any money from the
government? From whom and for
what reason did he receive any money
or property from the government
through which he unjustly enriched
himself? State the details from whom
each amount was received,
the place and the time.
Enrile posits that his desired details are not evidentiary in nature; they are material facts that should be
clearly alleged in the Information so that he may be fully informed of the charges against him and be
prepared to meet the issues at the trial.

Enrile adds that the grounds raised in his motion for bill of particulars are cited in a context different from
his opposition to the issuance of a warrant of arrest. He maintains that the resolution of the probable cause
issue was interlocutory and did not bar the submission of the same issue in subsequent proceedings
especially in the context of a different proceeding.

Enrile thus prays that: (a) the Court en banc act on the present petition; (b) by way of an interim measure,
the Court issue a TRO or writ of preliminary injunction enjoining the Sandiganbayan from holding the pre-
trial and subsequent proceedings against him in Criminal Case No. SB-14-CRM-0238 during the pendency of
the present petition; (c) the Court expedite the proceedings and set the case for oral arguments; and (d) at
the conclusion of the proceedings, the Court annul and set aside the Sandiganbayans July 11, 2014
resolution and his arraignment.

A. The Peoples Comment

In its Comment,12 the People of the Philippines13 counters that the Sandiganbayan did not exercise its
discretionary power in an arbitrary or despotic manner. Even assuming that the Sandiganbayans denial of
Enriles motion for bill of particulars was erroneous, the error did not amount to lack or excess or
jurisdiction. It further maintains that the assailed Sandiganbayan rulings were arrived at based on the
procedures prescribed under Section 2, Rule VII of the Revised Internal Rules of the Sandiganbayan.

The People also argues that the Information already contained the ultimate facts; matters of evidence do
not need to be averred.

B. Enriles Reply

In his Reply, Enrile essentially claims that the right to move for a bill of particulars is ancillary to and in
implementation of an accuseds rights to due process, to be heard, and to be informed of the nature and
cause of the accusation against him. He maintains that the Sandiganbayans denial of his motion for bill of
particulars is not a mere denial of a procedural right under the Rules of Court, but of rights vested in an
accused under the Constitution to ensure fairness in the trial of the offense charged. Enrile also adds that
there could only be a fair trial if he could properly plead to the Information and prepare for trial.

Enrile further argues that the Peoples Comment did not dispute the relevance of the details sought in the
motion for bill of particulars. He likewise claims that the desired details could not be found in the
bundle of documents marked by the prosecution during the preliminary conference. Finally, Enrile
maintains that his motion for bill of particulars was not dilatory.

III.

THE COURTS RULING

After due consideration, we resolve to partially GRANT the petition under the terms outlined
below.
A. The constitutional right of the accused to be informed

Under the Constitution, a person who stands charged of a criminal offense has the right to be informed of
the nature and cause of the accusation against him.14 This right has long been established in English law,
and is the same right expressly guaranteed in our 1987 Constitution. This right requires that the offense
charged be stated with clarity and with certainty to inform the accused of the crime he is facing in sufficient
detail to enable him to prepare his defense.15 reda rclaw

In the 1904 case of United States v. Karelsen,16 the Court explained the purpose of informing an accused in
writing of the charges against him from the perspective of his right to be informed of the nature and cause
of the accusation against him: Lawlib raryofCR Alaw

The object of this written accusation was First. To furnish the accused with such a description of the
charge against him as will enable him to make his defense; and second, to avail himself of his conviction or
acquittal for protection against a further prosecution for the same cause; and third, to inform the court of
the facts alleged, so that it may decide whether they are sufficient in law to support a conviction, if one
should be had. (United States vs. Cruikshank, 92 U.S. 542.) In order that this requirement may be
satisfied, facts must be stated, not conclusions of law. Every crime is made up of certain acts and
intent; these must be set forth in the complaint with reasonable particularity of time, place, names (plaintiff
and defendant), and circumstances. In short, the complaint must contain a specific allegation of every fact
and circumstances necessary to constitute the crime charged. x x x.17 [Emphasis supplied.]
The objective, in short, is to describe the act with sufficient certainty to fully appraise the accused of the
nature of the charge against him and to avoid possible surprises that may lead to injustice. Otherwise, the
accused would be left speculating on why he has been charged at all.18 redarc law

In People v. Hon. Mencias, et al.,19 the Court further explained that a persons constitutional right to be
informed of the nature and cause of the accusation against him signifies that an accused should be given the
necessary data on why he is the subject of a criminal proceeding. The Court added that the act or conduct
imputed to a person must be described with sufficient particularity to enable the accused to defend himself
properly.

The general grant and recognition of a protected right emanates from Section 1, Article III of the 1987
Constitution which states that no person shall be deprived of life, liberty, or property without due process of
law. The purpose of the guaranty is to prevent governmental encroachment against the life, liberty, and
property of individuals; to secure the individual from the arbitrary exercise of the powers of the government,
unrestrained by the established principles of private rights and distributive justice x x x; and to secure to all
persons equal and impartial justice and the benefit of the general law.20 reda rclaw

Separately from Section 1, Article III is the specific and direct underlying root of the right to information in
criminal proceedings Section 14(1), Article III which provides that No person shall be held to answer for
a criminal offense without due process of law. Thus, no doubt exists that the right to be informed of the
cause of the accusation in a criminal case has deep constitutional roots that, rather than being cavalierly
disregarded, should be carefully protected.

In Republic of the Philippines v. Sandiganbayan (2nd Division),21 the Court, in sustaining the
Sandiganbayans grant of the motion for bill of particulars of Ferdinand Marcos, Jr., held that the facile
verbosity with which the legal counsel for the government flaunted the accusation of excesses against the
Marcoses in general terms must be soonest refurbished by a bill of particulars, so that respondent can
properly prepare an intelligent responsive pleading and so that trial in this case will proceed as expeditiously
as possible.22 The Court additionally stated that: Lawlib raryofCRAlaw

This Court has been liberal in giving the lower courts the widest latitude of discretion in setting aside default
orders justified under the right to due process principle. Plain justice demands and the law requires no less
that defendants must know what the complaint against them is all about.

x x x In the interest of justice, we need to dispel the impression in the individual respondents' minds that
they are being railroaded out of their rights and properties without due process of law.23
B. Procedural Sufficiency of the Information

An Information is an accusation in writing charging a person with an offense, signed by the prosecutor and
filed with the court.24 The Revised Rules of Criminal Procedure, in implementing the constitutional right of
the accused to be informed of the nature and cause of the accusation against him, specifically require
certain matters to be stated in the Information for its sufficiency. The requirement aims to enable the
accused to properly prepare for his defense since he is presumed to have no independent
knowledge of the facts constituting the offense charged.25 redarclaw

To be considered as sufficient and valid, an information must state the name of the accused; the designation
of the offense given by the statute; the acts or omissions constituting the offense; the name of the offended
party; the approximate date of the commission of the offense; and the place where the offense was
committed.26 reda rclaw

If there is no designation of the offense, reference shall be made to the section or subsection of the statute
penalizing it. The acts or omissions constituting the offense and the qualifying and aggravating
circumstances alleged must be stated in ordinary and concise language; they do not necessarily need to be
in the language of the statute, and should be in terms sufficient to enable a person of common
understanding to know what offense is charged and what qualifying and aggravating circumstances are
alleged, so that the court can pronounce judgment.27 The Rules do not require the Information to exactly
allege the date and place of the commission of the offense, unless the date and the place are material
ingredients or essential elements of the offense, or are necessary for its identification.

B.1. Ultimate facts versus Evidentiary facts

An Information only needs to state the ultimate facts constituting the offense; the evidentiary and other
details (i.e., the facts supporting the ultimate facts) can be provided during the trial.28 redarclaw

Ultimate facts is defined as those facts which the expected evidence will support. The term does not refer
to the details of probative matter or particulars of evidence by which these material elements are to be
established. It refers to the facts that the evidence will prove at the trial.29 re darcl aw

Ultimate facts has also been defined as the principal, determinative, and constitutive facts on whose
existence the cause of action rests;30 they are also the essential and determining facts on which the court's
conclusion rests and without which the judgment would lack support in essential particulars.31 reda rclaw

Evidentiary facts, on the other hand, are the facts necessary to establish the ultimate facts; they are the
premises that lead to the ultimate facts as conclusion.32They are facts supporting the existence of
some other alleged and unproven fact.33 redarclaw

In Bautista v. Court of Appeals,34 the Court explained these two concepts in relation to a particular criminal
case, as follows: Lawli bra ryofCRAlaw

The distinction between the elements of the offense and the evidence of these elements is analogous or akin
to the difference between ultimate facts and evidentiary facts in civil cases. Ultimate facts are the
essential and substantial facts which either form the basis of the primary right and duty or which
directly make up the wrongful acts or omissions of the defendant, while evidentiary facts are
those which tend to prove or establish said ultimate facts. x x x.35 [Emphasis supplied.]
While it is fundamental that every element of the offense must be alleged in the Information, matters of
evidence as distinguished from the facts essential to the nature of the offense do not need to be alleged.
Whatever facts and circumstances must necessarily be alleged are to be determined based on the definition
and the essential elements of the specific crimes.36 redarclaw

C. Arraignment

The procedural due process mandate of the Constitution requires that the accused be arraigned so that he
may be fully informed as to why he was charged and what penal offense he has to face, to be convicted
only on showing that his guilt is shown beyond reasonable doubt with full opportunity to disprove the
evidence against him.37 During arraignment, the accused is granted the opportunity to fully know the
precise charge that confronts him and made fully aware of possible loss of freedom, even of his
life, depending on the nature of the crime imputed to him.38 redarclaw

An arraignment thus ensures that an accused be fully acquainted with the nature of the crime imputed to
him in the Information and the circumstances under which it is allegedly committed.39 It is likewise at this
stage of the proceedings when the accused enters his plea,40 or enters a plea of not guilty to a lesser offense
which is necessarily included in the offense charged.41 redarclaw

A concomitant component of this stage of the proceedings is that the Information should provide the
accused with fair notice of the accusations made against him, so that he will be able to make an intelligent
plea and prepare a defense.42Moreover, the Information must provide some means of ensuring that
the crime for which the accused is brought to trial is in fact one for which he was charged, rather
than some alternative crime seized upon by the prosecution in light of subsequently discovered
evidence.43Likewise, it must indicate just what crime or crimes an accused is being tried for, in
order to avoid subsequent attempts to retry him for the same crime or crimes.44 In other words, the
Information must permit the accused to prepare his defense, ensure that he is prosecuted only on the basis
of facts presented, enable him to plead jeopardy against a later prosecution, and inform the court of the
facts alleged so that it can determine the sufficiency of the charge.

Oftentimes, this is achieved when the Information alleges the material elements of the crime charged. If the
Information fails to comply with this basic standard, it would be quashed on the ground that it fails to
charge an offense.45Of course, an Information may be sufficient to withstand a motion to quash,
and yet insufficiently inform the accused of the specific details of the alleged offenses. In such
instances, the Rules of Court allow the accused to move for a bill of particulars to enable him
properly to plead and to prepare for trial.46 redarclaw

C.1. Bill of Particulars

In general, a bill of particulars is the further specification of the charges or claims in an action,
which an accused may avail of by motion before arraignment, to enable him to properly plead and prepare
for trial. In civil proceedings, a bill of particulars has been defined as a complementary procedural
document consisting of an amplification or more particularized outline of a pleading, and is in the nature of a
more specific allegation of the facts recited in the pleading.47 The purpose of a motion for bill of particulars
in civil cases is to enable a party to prepare his responsive pleading properly.

In criminal cases, a bill of particulars details items or specific conduct not recited in the Information but
nonetheless pertain to or are included in the crime charged. Its purpose is to enable an accused: to know
the theory of the governments case;48 to prepare his defense and to avoid surprise at the trial; to plead his
acquittal or conviction in bar of another prosecution for the same offense; and to compel the prosecution to
observe certain limitations in offering evidence.49 redarclaw

In criminal proceedings, the motion for a bill of particulars is governed by Section 9 of Rule 116 of the
Revised Rules of Criminal Procedure which provides: Lawli bra ryofCRAlaw

Section 9. Bill of particulars. - The accused may, before arraignment, move for a bill of particulars to enable
him properly to plead and prepare for trial. The motion shall specify the alleged defects of the complaint or
information and the details desired.
The rule requires the information to describe the offense with sufficient particularity to apprise the accused
of the crime charged with and to enable the court to pronounce judgment. The particularity must be
such that persons of ordinary intelligence may immediately know what the Information
means.50 redarc law

The general function of a bill of particulars, whether in civil or criminal proceedings, is to guard against
surprises during trial. It is not the function of the bill to furnish the accused with the evidence of the
prosecution. Thus, the prosecutor shall not be required to include in the bill of particulars matters of
evidence relating to how the people intend to prove the elements of the offense charged or how the people
intend to prove any item of factual information included in the bill of particulars.51 reda rclaw

C.2. Origin of bill of particulars in criminal cases52 re darc la w

Even before the promulgation of the 1964 Rules of Court, when the applicable rules for criminal procedure
was still General Order No. 58,53 the Court had already recognized the need for a bill of particulars in
criminal cases. This recognition came despite the lack of any specific provision in General Order No. 58
setting out the rules for a bill of particulars in criminal cases.

In U.S. v. Schneer,54 the issue presented was whether a bill of particulars was available in a criminal case
for estafa after the accused had already been arraigned. The Court essentially ruled that there was no
specific provision of law expressly authorizing the filing of specifications or bills of particulars in criminal
cases, and held that: Lawlibra ryofCRAlaw

We know of no provision either in General Orders, No. 58, or in the laws existing prior thereto which
requires the Government to furnish such a bill of particulars, and we accordingly hold that it was not error
on the part of the court below to refuse to do so.
In U.S. v. Cernias,55 however, the Court formally recognized the existence and applicability of a bill of
particulars in criminal cases. In this case, the prosecution filed an information charging Basilio Cernias with
several counts of brigandage before the Court of First Instance of Leyte. In overruling the accuseds
objection, the Court declared that the prosecutions act of specifying certain acts done by the conspirators in
the Information did no more than to furnish the defendant with a bill of particulars of the facts which it
intended to prove at the trial x x x.56
redarclaw

In sum, the Court essentially held that a detailed complaint or information is not objectionable, and that the
details it contains may be properly considered as specifications or bill of particulars.57
redarclaw

In People v. Abad Santos,58 the court first recognized a bill of particulars, as a right that the accused may
ask for from the court. In this case, the prosecution charged respondent Joseph Arcache with the crime of
treason before the Peoples Court. The Information filed against the accused contained, in counts 2 and 3,
the phrase and other similar equipment.

The counsel for the accused verbally petitioned the Peoples court to order the prosecution to make more
specific [the] phrase and other similar equipment, which request the Peoples Court granted. The People of
the Philippines filed a petition for certiorari, but the Court dismissed this petition.

In upholding the order of the Peoples Court, the Court ruled that in the absence of specific provisions of
law prohibiting the filing of specifications or bills of particulars in criminal cases, their submission may be
permitted, as they cannot prejudice any substantial rights of the accused. On the contrary, they will serve to
apprise the accused clearly of the charges filed against them, and thus enable them to prepare intelligently
whatever defense or defenses they might have.59 redarclaw

Notably, Abad Santos emphasized the importance of a bill of particulars in criminal cases, stating that x x x
inasmuch as in criminal cases not only the liberty but even the life of the accused may be at stake, it is
always wise and proper that the accused should be fully apprised of the true charges against them, and thus
avoid all and any possible surprise, which might be detrimental to their rights and interests; and ambiguous
phrases should not, therefore, be permitted in criminal complaints or informations; and if any such phrase
has been included therein, on motion of the defense, before the commencement of the trial, the court
should order either its elimination as surplusage or the filing of the necessary specification, which is but an
amendment in mere matters of form.60 redarclaw

In these cited cases, the Courts did not rely on the Rules of Court to provide for a bill of particulars in
criminal cases. A specific provision granting the accused the right to move for or demand a more definite
statement or a bill of particulars was not incorporated as a formal rule until the 1964 Rules of Court,61under
its Section 6, Rule 116. This initial provision later became Section 10 of Rule 116 under the 1985 Rules of
Criminal Procedure62and Section 9 of Rule 116 under the Revised Rules of Criminal Procedure, as
amended.63 redarclaw

C.3. The Distinctive Role of a Bill of Particulars

When allegations in an Information are vague or indefinite, the remedy of the accused is not a motion to
quash, but a motion for a bill of particulars.

The purpose of a bill of particulars is to supply vague facts or allegations in the complaint or information to
enable the accused to properly plead and prepare for trial. It presupposes a valid Information, one that
presents all the elements of the crime charged, albeit under vague terms. Notably, the specifications
that a bill of particulars may supply are only formal amendments to the complaint or Information.

In Virata v. Sandiganbayan,64 the Court expounded on the purpose of a bill of particulars as follows: Lawlib raryofCR Alaw

It is the office or function, as well as the object or purpose, of a bill of particulars to amplify or limit a
pleading, specify more minutely and particularly a claim or defense set up and pleaded in general terms,
give information, not contained in the pleading, to the opposite party and the court as to the precise nature,
character, scope, and extent of the cause of action or defense relied on by the pleader, and apprise the
opposite party of the case which he has to meet, to the end that the proof at the trial may be limited to the
matters specified, and in order that surprise at, and needless preparation for, the trial may be avoided, and
that the opposite party may be aided in framing his answering pleading and preparing for trial. It has also
been stated that it is the function or purpose of a bill of particulars to define, clarify,
particularize, and limit or circumscribe the issues in the case, to expedite the trial, and assist the
court. A general function or purpose of a bill of particulars is to prevent injustice or do justice in
the case when that cannot be accomplished without the aid of such a bill. 65 redarclaw

x x x x [Emphasis ours.]
Notably, the failure of the accused to move for the specification of the details desired deprives
him of the right to object to evidence that could be introduced and admitted under an
Information of more or less general terms but which sufficiently charges the accused with a
definite crime.66 redarclaw

Although the application for the bill of particulars is one addressed to the sound discretion of the court67 it
should nonetheless exercise its discretion within the context of the facts and the nature of the crime
charged in each case and the right of the accused to be informed of the nature and cause of
accusation against him. As articulated in the case of People v. Iannone:68
It is beyond cavil that a defendant has a basic and fundamental right to be informed of the charges against
him so that he will be able to prepare a defense. Hence the courts must exercise careful surveillance to
ensure that a defendant is not deprived of this right by an overzealous prosecutor attempting to protect his
case or his witnesses. Any effort to leave a defendant in ignorance of the substance of the accusation until
the time of trial must be firmly rebuffed. This is especially so where the indictment itself provides a paucity
of information. In such cases, the court must be vigilant in safeguarding the defendant's rights to a bill of
particulars and to effective discovery. Should the prosecutor decide to use an indictment which, although
technically sufficient, does not adequately allow a defendant to properly prepare for trial, he may well run
afoul of the defendant's right to be informed of the accusations against him.
Thus, if the Information is lacking, a court should take a liberal attitude towards its granting69 and order the
government to file a bill of particulars elaborating on the charges. Doubts should be resolved in favor of
granting the bill70 to give full meaning to the accuseds Constitutionally guaranteed rights.

Notably, the government cannot put the accused in the position of disclosing certain overt acts through the
Information and withholding others subsequently discovered, all of which it intends to prove at the trial. This
is the type of surprise a bill of particulars is designed to avoid.71The accused is entitled to the
observance of all the rules designated to bring about a fair verdict.

This becomes more relevant in the present case where the crime charged carries with it the
severe penalty of capital punishment and entails the commission of several predicate criminal
acts involving a great number of transactions spread over a considerable period of time.

C.4. Motion to Quash vs. Motion for Bill of Particulars

A bill of particulars presupposes a valid Information while a motion to quash is a jurisdictional defect on
account that the facts charged in the Information does not constitute an offense.72 redarclaw

Justice Antonio T. Carpio, in his dissent, avers that the allegations in the information are not vague because
the Information needs only allege the ultimate facts constituting the offense for which the accused stands
charged, not the finer details of why and how the illegal acts alleged were committed. In support of his
position, Justice Carpio cited the cases of Miguel v. Sandiganbayan,73Go v. Bangko Sentral ng
Pilipinas,74 and People v. Romualdez,75 among others, to support the superfluity of the details requested by
Enrile.

Justice Carpios reliance on these cases is misplaced for they involve the issue of quashal of an
information on the ground that the facts charge do not constitute an offense, rather than a request for bill
of particulars. That is, these cited cases involve the critical issue of the validity of an information, and not a
request for specificity with request to an offense charged in an information.

On the other hand, the cases of People v. Sanico,76People v. Banzuela,77Pielago v. People,78People v. Rayon,
Sr.,79People v. Subesa,80People v. Anguac,81 and Los Baos v. Pedro,82 which were likewise cited by Justice
Carpio, involve the issue that an Information only need to allege the ultimate facts, and not the specificity of
the allegations contained in the information as to allow the accused to prepare for trial and make an
intelligent plea.83
redarclaw

Notably, in Miguel,84 to which Justice Carpio concurred, this Court mentioned that the proper
remedy, if at all, to a supposed ambiguity in an otherwise valid Information, is merely to move
for a bill of particulars and not for the quashal of an information which sufficiently alleges the
elements of the offense charged.85 redarclaw

Clearly then, a bill of particulars does not presuppose an invalid information for it merely fills in
the details on an otherwise valid information to enable an accused to make an intelligent plea
and prepare for his defense.

I stress, however, that the issue in the present case involves abuse of discretion for denying Enriles request
for a bill of particulars, and not a motion to quash.

If the information does not charge an offense, then a motion to quash is in order. 86 redarclaw

But if the information charges an offense and the averments are so vague that the accused
cannot prepare to plead or prepare for trial, then a motion for a bill of particulars is the proper
remedy.87 redarc law

Thus viewed, a motion to quash and a motion for a bill of particulars are distinct and separate remedies, the
latter presupposing an information sufficient in law to charge an offense.88 redarclaw

D. The Grave Abuse of Discretion Issue

The grant or denial of a motion for bill of particulars is discretionary on the court where the Information is
filed. As usual in matters of discretion, the ruling of the trial court will not be reversed unless grave abuse of
discretion or a manifestly erroneous order amounting to grave abuse of discretion is shown.89 redarclaw

Grave abuse of discretion refers to the capricious or whimsical exercise of judgment that amounts or is
equivalent to lack of jurisdiction. The abuse of discretion must be so patent and gross as to amount to an
evasion of a positive duty or a virtual refusal to perform a duty enjoined by law, or to act at all in
contemplation of law such as when the power is exercised in an arbitrary and despotic manner by reason of
passion and hostility.90 For the extraordinary writ of certiorari to lie, there must be capricious, arbitrary, or
whimsical exercise of power.

It will be recalled that the Sandiganbayan denied Enriles motion for bill of particulars on two grounds,
namely: Lawlib raryofCR Alaw

(1) the details sought were evidentiary in nature and are best
ventilated during trial; and

(2) his desired details were reiterations of the details he sought in


his supplemental opposition to the issuance of a warrant of
arrest.
We shall separately examine these grounds in determining whether the Sandiganbayan committed grave
abuse of discretion when it denied Enriles motion for a bill of particulars and his subsequent motion for
reconsideration.

Sandiganbayan Ground #1: Lawlibrar yofCRAlaw

The details sought were evidentiary in nature

D.1. The Law of Plunder

A determination of whether the details that Enrile sought were evidentiary requires an examination of the
elements of the offense he is charged with, i.e., plunder under Republic Act No. 7080.

Section 2 of R.A. No. 7080, as amended, reads: Lawlibra ryofCRAlaw

Section 2. Definition of the Crime of Plunder; Penalties. Any public officer who, by himself or in
connivance with members of his family, relatives by affinity or consanguinity, business associates,
subordinates or other persons, amasses, accumulates or acquires ill-gotten wealth through
a combination or series of overt criminal acts as described in Section 1 (d) hereof in the aggregate
amount or total value of at least Fifty million pesos (P50,000,000.00) shall be guilty of the crime of
plunder and shall be punished by reclusion perpetua to death. Any person who participated with the said
public officer in the commission of an offense contributing to the crime of plunder shall likewise be punished
for such offense. In the imposition of penalties, the degree of participation and the attendance of mitigating
and extenuating circumstances, as provided by the Revised Penal Code, shall be considered by the court.
The court shall declare any and all ill-gotten wealth and their interests and other incomes and assets
including the properties and shares of stocks derived from the deposit or investment thereof forfeited in
favor of the State. [Emphasis supplied.]
Based on this definition, the elements of plunder are: Lawlib raryofCR Alaw

(1) That the offender is a public officer who acts by himself or in


connivance with members of his family, relatives by affinity or
consanguinity, business associates, subordinates, or other persons;

(2) That he amassed, accumulated or acquired ill-gotten wealth through


a combination or series of the following overt or criminal acts:

(a) through misappropriation, conversion, misuse, or malversation of


public funds or raids on the public treasury;

(b) by receiving, directly or indirectly, any commission, gift, share,


percentage, kickback or any other form of pecuniary benefits from
any person and/or entity in connection with any government contract
or project or by reason of the office or position of the public officer
concerned;

(c) by the illegal or fraudulent conveyance or disposition of assets


belonging to the National Government or any of its subdivisions,
agencies or instrumentalities of government-owned or -controlled
corporations or their subsidiaries;

(d) by obtaining, receiving or accepting directly or indirectly any shares


of stock, equity or any other form of interest or participation
including the promise of future employment in any business
enterprise or undertaking;

(e) by establishing agricultural, industrial or commercial monopolies or


other combinations and/or implementation of decrees and orders
intended to benefit particular persons or special interests; or

(f) by taking undue advantage of official position, authority,


relationship, connection or influence to unjustly enrich himself or
themselves at the expense and to the damage and prejudice of the
Filipino people and the Republic of the Philippines; and,

(3) That the aggregate amount or total value of the ill-gotten wealth
amassed, accumulated or acquired is at least P50,000,000.00.
[Emphasis supplied.]
D.1.a. The Conspiracy Element and its Requested Details

Taking these elements into account, we hold that Enriles requested details on Who among the accused
acquired the alleged ill-gotten wealth are not proper subjects for a bill of particulars.

The allegation of the Information that the accused and Jessica Lucila G. Reyes, conspiring with one another
and with Janet Lim Napoles, Ronald John Lim, and John Raymund de Asis x x x expressly charges
conspiracy.

The law on plunder provides that it is committed by a public officer who acts by himself or in connivance
with x x x. The term connivance suggests an agreement or consent to commit an unlawful act or deed
with another; to connive is to cooperate or take part secretly with another.91 It implies both knowledge and
assent that may either be active or passive.92
reda rclaw

Since the crime of plunder may be done in connivance or in conspiracy with other persons, and the
Information filed clearly alleged that Enrile and Jessica Lucila Reyes conspired with one another and with
Janet Lim Napoles, Ronald John Lim and John Raymund De Asis, then it is unnecessary to specify, as an
essential element of the offense, whether the ill-gotten wealth amounting to at least P172,834,500.00 had
been acquired by one, by two or by all of the accused. In the crime of plunder, the amount of ill-gotten
wealth acquired by each accused in a conspiracy is immaterial for as long as the total amount
amassed, acquired or accumulated is at least P50 million.

We point out that conspiracy in the present case is not charged as a crime by itself but only as the mode of
committing the crime. Thus, there is no absolute necessity of reciting its particulars in the Information
because conspiracy is not the gravamen of the offense charged.

It is enough to allege conspiracy as a mode in the commission of an offense in either of the following
manner: (1) by use of the word conspire, or its derivatives or synonyms, such as confederate, connive,
collude; or (2) by allegations of basic facts constituting the conspiracy in a manner that a person of common
understanding would know what is intended, and with such precision as the nature of the crime charged will
admit, to enable the accused to competently enter a plea to a subsequent indictment based on the same
facts.93
redarclaw

Our ruling on this point in People v. Quitlong94 is particularly instructive:


Lawlib ra ryofCRAlaw

A conspiracy indictment need not, of course, aver all the components of conspiracy or allege all the details
thereof, like the part that each of the parties therein have performed, the evidence proving the common
design or the facts connecting all the accused with one another in the web of the conspiracy. Neither is it
necessary to describe conspiracy with the same degree of particularity required in describing a substantive
offense. It is enough that the indictment contains a statement of the facts relied upon to be constitutive of
the offense in ordinary and concise language, with as much certainty as the nature of the case will admit, in
a manner that can enable a person of common understanding to know what is intended, and with such
precision that the accused may plead his acquittal or conviction to a subsequent indictment based on the
same facts. x x x95
D.1.b. The Requested Details of Enriles PDAF

We similarly rule that the petitioner is not entitled to a bill of particulars for specifics sought under the
questions
For each of the years 2004-2010, under what law or official document is a portion of the Priority
Development Assistance Fund identified as that of a member of Congress, in this instance, as
ENRILEs, to be found? In what amount for each year is ENRILEs Priority Development
Assistance Fund?

and

x x x what COA audits or field investigations were conducted which validated the findings that
each of Enriles PDAF projects in the years 2004-2010 were ghosts or spurious projects?
These matters will simply establish and support the ultimate fact that Enriles PDAF was used to fund
fictitious or nonexistent projects. Whether a discretionary fund (in the form of PDAF) had indeed been made
available to Enrile as a member of the Philippine Congress and in what amounts are evidentiary matters that
do not need to be reflected with particularity in the Information, and may be passed upon at the full-blown
trial on the merits of the case.

D.1.b(i) The yearly PDAF Allocations


Specifically, we believe that the exact amounts of Enriles yearly PDAF allocations, if any, from 2004 to 2010
need not be pleaded with specific particularity to enable him to properly plead and prepare for his defense.
In fact, Enrile may be in a better position to know these details than the prosecution and thus cannot claim
that he would be taken by surprise during trial by the omission in the Information of his annual PDAF
allocations.

Thus, whether the amounts of Enriles PDAF allocations have been specified or not, Enrile has been
sufficiently informed that he stands charged of endorsing Napoles non-government organizations to
implement spurious or fictitious projects, in exchange for a percentage of his PDAF.

D.1.b(ii) The details of the COA Audits

The details of the COA audits or field investigations only support the ultimate fact that the projects
implemented by Napoles NGOs, and funded by Enriles PDAF, were nonexisting or fictitious. Thus, they are
evidentiary in nature and do not need to be spelled out with particularity in the Information.

To require more details on these matters from the prosecution would amount to asking for evidentiary
information that the latter intends to present at the trial; it would be a compulsion on the prosecution to
disclose in advance of the trial the evidence it will use in proving the charges alleged in the indictment.

D.1.c. Other Sources of Kickbacks and Commissions

We also deny Enriles plea for details on who the others were (aside from Napoles, Lim and De Asis)
from whom he allegedly received kickbacks and commissions. These other persons do not stand charged of
conspiring with Enrile and need not therefore be stated with particularly, either as specific individuals or as
John Does. The Court cannot second-guess the prosecutions reason for not divulging the identity of these
others who may potentially be witnesses for the prosecution.

What the Constitution guarantees the accused is simply the right to meet and examine the prosecution
witnesses. The prosecution has the prerogative to call witnesses other than those named in the complaint or
information, subject to the defenses right to cross-examine them.96Making these others known would in
fact be equivalent to the prosecutions premature disclosure of its evidence. We stress, to the point of
repetition, that a bill of particulars is not meant to compel the prosecution to prematurely
disclose evidentiary matters supporting its case.

D.2. The Overt Acts constituting the Combination or Series under the Plunder Law

We hold that Enrile is entitled to a bill of particulars for specifics sought under the following questions
What are the particular overt acts which constitute the combination? What are the particular
overt acts which constitute the series? Who committed those acts? [Emphasis ours.]
D.2.a. Reason for Requirement for Particulars of Overt Acts

Plunder is the crime committed by public officers when they amass wealth involving at least P50 million by
means of a combination or series of overt acts.97 Under these terms, it is not sufficient to simply allege that
the amount of ill-gotten wealth amassed amounted to at least P50 million; the manner of amassing the ill-
gotten wealth whether through a combination or series of overt acts under Section 1(d) of R.A.
No. 7080 is an important element that must be alleged.

When the Plunder Law speaks of combination, it refers to at least two (2) acts falling
under different categories listed in Section 1, paragraph (d) of R.A. No. 7080 [for example, raids on the
public treasury under Section 1, paragraph (d), subparagraph (1), and fraudulent conveyance of assets
belonging to the National Government under Section 1, paragraph (d), subparagraph (3)].

On the other hand, to constitute a series there must be two (2) or more overt or criminal acts falling
under the same category of enumeration found in Section 1, paragraph (d) [for example, misappropriation,
malversation and raids on the public treasury, all of which fall under Section 1, paragraph (d), subparagraph
(1)].98
reda rclaw

With respect to paragraph (a) of the Information


[(i.e., by repeatedly receiving from NAPOLES and/or her representatives LIM, DE ASIS, and others,
kickbacks or commissions under the following circumstances: before, during and/or after the project
identification, NAPOLES gave, and ENRILE and/or REYES received, a percentage of the cost of a project to
be funded from ENRILES Priority Development Assistance Fund (PDAF), in consideration of ENRILES
endorsement, directly or through REYES, to the appropriate government agencies, of NAPOLES non-
government organizations which became the recipients and/or target implementers of ENRILES PDAF
projects, which duly funded projects turned out to be ghosts or fictitious, thus enabling NAPOLES to
misappropriate the PDAF proceeds for her personal gain x x x)]
we hold that the prosecution employed a generalized or shotgun approach in alleging the criminal overt
acts allegedly committed by Enrile. This approach rendered the allegations of the paragraph uncertain to the
point of ambiguity for purposes of enabling Enrile to respond and prepare for his defense. These
points are explained in greater detail below.

The heart of the Plunder Law lies in the phrase combination or series of overt or criminal acts.
Hence, even if the accumulated ill-gotten wealth amounts to at least P50 million, a person cannot
be prosecuted for the crime of plunder if this resulted from a single criminal act. This interpretation
of the Plunder Law is very clear from the congressional deliberations.99reda rclaw

Considering that without a number of overt or criminal acts, there can be no crime of plunder, the various
overt acts that constitute the combination and series the Information alleged, are material facts that
should not only be alleged, but must be stated with sufficient definiteness so that the accused would know
what he is specifically charged of and why he stands charged, so that he could properly defend himself
against the charge.

Thus, the several (i.e., at least 2) acts which are indicative of the overall scheme or conspiracy must not
be generally stated; they should be stated with enough particularity for Enrile (and his co-accused) to be
able to prepare the corresponding refuting evidence to meet these alleged overt acts.

It is insufficient, too, to merely allege that a set of acts had been repeatedly done (although this may
constitute a series if averred with sufficient definiteness), and aver that these acts resulted in the
accumulation or acquisition of ill-gotten wealth amounting to at least P172,834,500.00, as in this case. The
Information should reflect with particularity the predicate acts that underlie the crime of plunder, based on
the enumeration in Section 1(d) of R.A. No. 7080.

A reading of the Information filed against Enrile in the present case shows that the prosecution made
little or no effort to particularize the transactions that would constitute the required series or
combination of overt acts.

In fact, it clustered under paragraph (a) of the Information its recital of the manner Enrile and his
co-accused allegedly operated, thus describing its general view of the series or combination of
overt criminal acts that constituted the crime of plunder.

Without any specification of the basic transactions where kickbacks or commissions amounting to at least
P172,834,500.00 had been allegedly received, Enriles preparation for trial is obviously hampered. This
defect is not cured by mere reference to the prosecutions attachment, as Enrile already stated in his
Reply that the desired details could not be found in the bundle of documents marked by the
prosecution, which documents are not integral parts of the Information. Hence, the prosecution
does not discharge its burden of informing Enrile what these overt acts were by simply pointing to these
documents.

In providing the particulars of the overt acts that constitute the combination or series of transactions
constituting plunder, it stands to reason that the amounts involved, or at their ball park figures, should
be stated; these transactions are not necessarily uniform in amount, and cannot simply collectively be
described as amounting to P172,834,500.00 without hampering Enriles right to respond after receiving the
right information.

To stress, this final sum is not a general ball park figure but a very specific sum based on a number
of different acts and hence must have a breakdown. Providing this breakdown reinforces the required
specificity in describing the different overt acts.

Negatively stated, unless Enrile is given the particulars and is later given the chance to object to unalleged
details, he stands to be surprised at the trial at the same time that the prosecution is given the opportunity
to play fast and loose with its evidence to satisfy the more than P50 Million requirement of law.

D.2.b. Approximate Dates of Commissions or Kickbacks


Enrile should likewise know the approximate dates, at least, of the receipt of the kickbacks and
commissions, so that he could prepare the necessary pieces of evidence, documentary or otherwise, to
disprove the allegations against him. We point out that the period covered by the indictment extends from
2004 to 2010 or thereabout, of which, we again stress that different overt acts constituting of the
elements of Plunder took place during this period.

Undoubtedly, the length of time involved six years will pose difficulties to Enrile in the preparation of
his defense and will render him susceptible to surprises. Enrile should not be left guessing and
speculating which one/s from among the numerous transactions involving his discretionary PDAF funds from
2004 to 2010, are covered by the indictment.

D.2.c. The Projects Funded and NGOs Involved

Enrile is also entitled to particulars specifying the project that Enrile allegedly funded coupled with the
name of Napoles NGO (e.g., Pangkabuhayan Foundation, Inc.), to sufficiently inform Enrile of the
particular transactions referred to.100
reda rclaw

Be it remembered that the core of the indictment is: Lawlibra ryofCRAl aw

(1) the funding of nonexisting projects using Enriles PDAF;

(2) Enriles endorsement of Napoles NGOs to the government agencies to implement these
projects; and

(3) Enriles receipt of kickbacks or commissions in exchange for his endorsement.

Under the elaborate scheme alleged to have been committed by Enrile and his co-accused, the project
identification was what started the totality of acts constituting plunder: only after a project has been
identified could Enrile have endorsed Napoles NGO to the appropriate government agency that, in turn,
would implement the supposed project using Enriles PDAF. Note that without the project identification, no
justification existed to release Enriles PDAF to Napoles allegedly bogus NGO.

In these lights, the identified project and Napoles NGO are material facts that should be clearly and
definitely stated in the Information to allow Enrile to adequately prepare his defense evidence on the specific
transaction pointed to. The omission of these details will necessarily leave Enrile guessing on what
transaction/s he will have to defend against, since he may have funded other projects with his PDAF.
Specification will also allow him to object to evidence not referred to or covered by the Informations
ultimate facts.

D.2.d. The Government Agencies Serving as Conduits

The government agencies to whom Enrile endorsed Napoles NGOs are also material facts that must be
specified, since they served a necessary role in the crime charged the alleged conduits between
Enrile and Napoles NGOs. They were indispensable participants in the elaborate scheme alleged to have
been committed.

The particular person/s in each government agency who facilitated the transactions, need not anymore be
named in the Information, as these are already evidentiary matters. The identification of the particular
agency vis--vis Napoles NGO and the identified project, will already inform Enrile of the transaction
referred to.

In Tantuico v. Republic,101 the Republic filed a case for reconveyance, reversion, accounting, restitution, and
damages before the Sandiganbayan against former President Ferdinand Marcos, Imelda Marcos, Benjamin
Romualdez, and Francisco Tantuico, Jr. Tantuico filed a motion for bill of particulars essentially alleging that
the complaint was couched in general terms and did not have the particulars that would inform him of the
alleged factual and legal bases. The Sandiganbayan denied his motion on the ground that the particulars
sought are evidentiary in nature. Tantuico moved to reconsider this decision, but the Sandiganbayan again
denied his motion.

The Court overturned the Sandiganbayans ruling and directed the prosecution to prepare and file a bill of
particulars. Significantly, the Court held that the particulars prayed for, such as: names of persons,
names of corporations, dates, amounts involved, a specification of property for identification
purposes, the particular transactions involving withdrawals and disbursements, and a statement
of other material facts as would support the conclusions and inferences in the complaint, are not
evidentiary in nature. The Court explained that those particulars are material facts that should be clearly
and definitely averred in the complaint so that the defendant may be fairly informed of the claims made
against him and be prepared to meet the issues at the trial.

To be sure, the differences between ultimate and evidentiary matters are not easy to distinguish.
While Tantuico was a civil case and did not involve the crime of plunder, the Courts ruling nonetheless
serves as a useful guide in the determination of what matters are indispensable and what matters may be
omitted in the Information, in relation with the constitutional right of an accused to be informed of the
nature and cause of the accusation against him.

In the present case, the particulars on the: Lawlib raryofCR Alaw

(1) projects involved;

(2) Napoles participating NGOs; and

(3) the government agency involved in each transaction


will undoubtedly provide Enrile with sufficient data to know the specific transactions involved, and thus
enable him to prepare adequately and intelligently whatever defense or defenses he may have.

We reiterate that the purpose of a bill of particular is to clarify allegations in the Information that are
indefinite, vague, or are conclusions of law to enable the accused to properly plead and prepare for
trial, not simply to inform him of the crime of which he stands accused. Verily, an accused cannot
intelligently respond to the charge laid if the allegations are incomplete or are unclear to him.

We are aware that in a prosecution for plunder, what is sought to be established is the commission of the
criminal acts in furtherance of the acquisition of ill-gotten wealth. In the language of Section 4 of R.A. No.
7080, for purposes of establishing the crime of plunder, it is sufficient to establish beyond reasonable doubt
a pattern of overt or criminal acts indicative of the overall unlawful scheme or conspiracy to amass,
accumulate, or acquire ill-gotten wealth.102
redarc law

The term overall unlawful scheme indicates a general plan of action or method that the principal
accused and public officer and others conniving with him follow to achieve their common criminal goal. In
the alternative, if no overall scheme can be found or where the schemes or methods used by the multiple
accused vary, the overt or criminal acts must form part of a conspiracy to attain a common criminal
goal.103
reda rclaw

Lest Section 4 be misunderstood as allowing the prosecution to allege that a set of acts has
been repeatedly done (thereby showing a pattern of overt criminal acts), as has been done in the present
case, we point out that this section does not dispense with the requirement of stating the essential or
material facts of each component or predicate act of plunder; it merely prescribes a rule of procedure
for the prosecution of plunder.

In Estrada v. Sandiganbayan,104 we construed this procedural rule to mean that [w]hat the prosecution
needed to prove beyond reasonable doubt was only the number of acts sufficient to form a combination or
series that would constitute a pattern involving an amount of at least P50,000,000.00. There was no need to
prove each and every other act alleged in the Information to have been committed by the accused in
furtherance of the overall unlawful scheme or conspiracy to amass, accumulate, or acquire ill-gotten
wealth.105 redarclaw

If, for example, the accused is charged in the Information of malversing public funds on twenty different
(20) occasions, the prosecution does not need to prove all 20 transactions; it suffices if a number of these
acts of malversation can be proven with moral certainty, provided only that the series or combination of
transaction would amount to at least P50,000,000.00. Nonetheless, each of the twenty transactions
should be averred with particularity, more so if the circumstances surrounding each transaction
are not the same. This is the only way that the accused can properly prepare for his defense during trial.

D.3. Paragraph (b) of the Information

As his last requested point, Enrile wants the prosecution to provide the details of the allegation under
paragraph (b) of the Information (i.e., x x x by taking undue advantage, on several occasions, of their
official position, authority, relationships, connections, and influence to unjustly enrich themselves at the
expense and to the damage and prejudice, of the Filipino people and the Republic of the Philippines) in the
following manner: Law lib raryofCRAlaw

Provide the details of how Enrile took undue advantage, on several occasions, of his official positions,
authority, relationships, connections, and influence to unjustly enrich himself at the expense and to the
damage and prejudice, of the Filipino people and the Republic of the Philippines. Was this because
he received any money from the government? From whom and for what reason did he receive any money or
property from the government through which he unjustly enriched himself? State the details from whom
each amount was received, the place and the time.
Our ruling on Enriles desired details specifically, the particular overt act/s alleged to constitute the
combination and series charged in the Information; a breakdown of the amounts of the kickbacks and
commissions allegedly received, stating how the amount of P172,834,500.00 was arrived at; a brief
description of the identified projects where kickbacks and commissions were received;
the approximate dates of receipt of the alleged kickbacks and commissions from the identified projects; the
name of Napoles non-government organizations (NGOs) which were the alleged recipients and/or target
implementors of Enriles PDAF projects; and the government agencies to whom Enrile allegedly endorsed
Napoles NGOs renders it unnecessary to require the prosecution to submit further particulars on
the allegations contained under paragraph (b) of the Information.

Simply put, the particular overt acts alleged to constitute the combination or series required by the crime of
plunder, coupled with a specification of the other non-evidentiary details stated above, already answer the
question of how Enrile took undue advantage of his position, authority, relationships, connections and
influence as Senator to unjustly enrich himself.

We also point out that the PDAF is a discretionary fund intended solely for public purposes. Since the
Information stated that Enrile, as Philippine Senator, committed the offense in relation to his office, by
repeatedly receiving kickbacks or commissions from Napoles and/or her representatives through projects
funded by his (Enriles) PDAF, then it already alleged how undue advantage had been taken and how the
Filipino people and the Republic had been prejudiced. These points are fairly deducible from the allegations
in the Information as supplemented by the required particulars.

E. The Grave Abuse of Discretion

In the light of all these considerations, we hold that the Sandiganbayans denial of the petitioners
motion for a bill of particulars, on the ground that the details sought to be itemized or specified
are all evidentiary without any explanation supporting this conclusion constitutes grave
abuse of discretion.

As discussed above, some of the desired details are material facts that must be alleged to enable the
petitioner to properly plead and prepare his defense. The Sandiganbayan should have diligently sifted
through each detail sought to be specified, and made the necessary determination of whether each detail
was an ultimate or evidentiary fact, particularly after Enrile stated in his Reply that the desired details
could not be found in the bundle of documents marked by the prosecution. We cannot insist or speculate
that he is feigning ignorance of the presence of these desired details; neither can we put on him the burden
of unearthing from these voluminous documents what the desired details are. The remedy of a bill of
particulars is precisely made available by the Rules to enable an accused to positively respond and make an
intelligent defense.

Justice Carpios reference to the voluminous 144-page Ombudsmans resolution (which found probable
cause to indict the petitioner and his co-accused not only of the crime of plunder, but also for violations of
several counts of the Anti-Graft and Corrupt Practice Act) to justify his argument that Enrile was already
aware of the details he seeks in his motion for a bill of particulars, all the more strengthens our conclusive
position that the Information for plunder filed against Enrile was ambiguous and glaringly insufficient to
enable him to make a proper plea and to prepare for trial. We reiterate, to the point of being repetitive, that
the purpose of the bill of particulars in criminal cases is to supply vague facts or allegations in the complaint
or information to enable the accused to properly plead and prepare for trial.

Moreover, a resolution arising from a preliminary investigation does not amount to nor does it serve the
purpose of a bill of particulars.

A bill of particulars guards against the taking of an accused by surprise by restricting the scope of the
proof;106it limits the evidence to be presented by the parties to the matters alleged in the
Information as supplemented by the bill. It is for this reason that the failure of an accused to move for
a bill of particulars deprives him of the right to object to evidence which could be lawfully introduced and
admitted under an information of more or less general terms which sufficiently charges the defendants with
a definite crime.

The record on preliminary investigation, in comparison, serves as the written account of the inquisitorial
process when the fiscal determined the existence of prima facie evidence to indict a person for a particular
crime. The record of the preliminary investigation, as a general rule, does not even form part of the records
of the case.107 These features of the record of investigation are significantly different from the bill of
particulars that serves as basis, together with the Information, in specifying the overt acts constituting the
offense that the accused pleaded to during arraignment.

Notably, plunder is a crime composed of several predicate criminal acts. To prove plunder, the
prosecution must weave a web out of the six ways of illegally amassing wealth and show how
the various acts reveal a combination or series of means or schemes that reveal a pattern of
criminality. The interrelationship of the separate acts must be shown and be established as a scheme to
accumulate ill-gotten wealth amounting to at least P50 million.

Plunder thus involves intricate predicate criminal acts and numerous transactions and schemes that span a
period of time. Naturally, in its prosecution, the State possesses an effective flexibility of proving a
predicate criminal act or transaction, not originally contemplated in the Information, but is otherwise
included in the broad statutory definition, in light of subsequently discovered evidence. The unwarranted use
of the flexibility is what the bill of particulars guards against.

Justice Carpio further argues that the ponencia transformed the nature of an action from an
accusation in writing charging a person with an offense to an initiatory pleading alleging a cause
of action.

We see nothing wrong with such treatment, for a motion for a bill of particulars in criminal cases is designed
to achieve the same purpose as the motion for a bill of particulars in civil cases. In fact, certainty, to a
reasonable extent, is an essential attribute of all pleadings, both civil and criminal, and is more especially
needed in the latter where conviction is followed by penal consequences.108 redarclaw

Thus, even if the Information employs the statutory words does not mean that it is unnecessary to allege
such facts in connection with the commission of the offense as will certainly put the accused on full notice of
what he is called upon to defend, and establish such a record as will effectually bar a subsequent
prosecution for that identical offense.109
reda rclaw

Notably, conviction for plunder carries with it the penalty of capital punishment; for this reason,
more process is due, not less. When a persons life interest protected by the life, liberty, and property
language recognized in the due process clause is at stake in the proceeding, all measures must be taken
to ensure the protection of those fundamental rights.

As we emphasized in Republic v. Sandiganbayan,110 the administration of justice is not a matter of


guesswork. The name of the game is fair play, not foul play. We cannot allow a legal skirmish where,
from the start, one of the protagonists enters the arena with one arm tied to his back.

Finally, we find no significance in Justice Carpios argument that Atty. Estelito Mendoza did not previously
find vague the Information for plunder filed against President Joseph Estrada in 2001.

Under the amended Information111 against Estrada, et al., each overt act that constituted the series or
combination and corresponding to the predicate acts under Section 1(d) had been averred with sufficient
particularity so that there was no doubt what particular transaction was referred to.

We point out that unlike in the Information against Enrile, the following matters had been averred with
sufficient definiteness, viz: the predicate acts that constitute the crime of plunder; the breakdown of how
the alleged amount of P4,097,804,173.17, more or less, had been arrived at; the participants involved in
each transaction; and the specific sources of the illegal wealth amassed.

At any rate, that Atty. Mendoza did not previously question the indictment of President Estrada via a motion
for bill of particulars does not ipso facto mean that the present Information for plunder filed against Enrile is
not vague and ambiguous.

Sandiganbayan Ground #2: Lawlibrar yofCRAlaw

That Enriles cited grounds are reiterations of the grounds previously raised

Enrile does not deny that the arguments he raised in his supplemental opposition to issuance of a warrant of
arrest and for dismissal of information and in his motion for bill of particulars were identical. He argues,
however, that the mere reiteration of these grounds should not be a ground for the denial of his motion for
bill of particulars, since the context in which those questions were raised was entirely different.

While both the motion to dismiss the Information and the motion for bill of particulars involved the right of
an accused to due process, the enumeration of the details desired in Enriles supplemental opposition to
issuance of a warrant of arrest and for dismissal of information and in his motion for bill of particulars are
different viewed particularly from the prism of their respective objectives.

In the former, Enrile took the position that the Information did not state a crime for which he can be
convicted; thus, the Information is void; he alleged a defect of substance. In the latter, he already impliedly
admits that the Information sufficiently alleged a crime but is unclear and lacking in details that would allow
him to properly plead and prepare his defense; he essentially alleged here a defect of form.

Note that in the former, the purpose is to dismiss the Information for its failure to state the nature and
cause of the accusation against Enrile; while the details desired in the latter (the motion for bill of
particulars) are required to be specified in sufficient detail because the allegations in the Information are
vague, indefinite, or in the form of conclusions and will not allow Enrile to adequately prepare his defense
unless specifications are made.

That every element constituting the offense had been alleged in the Information does not
preclude the accused from requesting for more specific details of the various acts or omissions
he is alleged to have committed. The request for details is precisely the function of a bill of
particulars.

Hence, while the information may be sufficient for purposes of stating the cause and the crime an accused is
charged, the allegations may still be inadequate for purposes of enabling him to properly plead and prepare
for trial.

We likewise find no complete congruence between the grounds invoked and the details sought by Enrile in
his motion for bill of particulars, and the grounds invoked in opposing the warrant for his arrest issued, so
that the Sandiganbayans action in one would bar Enrile from essentially invoking the same grounds.

The judicial determination of probable cause is one made by the judge to ascertain whether a warrant of
arrest should be issued against the accused. The judge must satisfy himself that based on the evidence
submitted, there is necessity for placing the accused under custody in order not to frustrate the ends of
justice.112 Simply put, the judge determines whether the necessity exists to place the accused under
immediate custody to avoid frustrating the ends of justice.

On the other hand, the Revised Rules of Criminal Procedure grants the accused the remedy of a bill of
particulars to better inform himself of the specifics or particulars concerning facts or matters that had not
been averred in the Information with the necessary clarity for purposes of his defense.

Its purpose is to better acquaint the accused of the specific acts and/or omissions in relation with the crime
charged, to limit the matters and the evidence that the prosecution may otherwise be allowed to use against
him under a more or less general averment, and to meet the charges head on and timely object to evidence
whose inadmissibility may otherwise be deemed waived.

Based on these considerations, the question of whether there is probable cause to issue a warrant of arrest
against an accused, is separate and distinct from the issue of whether the allegations in the Information
have been worded with sufficient definiteness to enable the accused to properly plead and prepare his
defense. While the grounds cited for each may seemingly be the same, they are submitted for different
purposes and should be appreciated from different perspectives, so that the insufficiency of these grounds
for one does not necessarily translate to insufficiency for the other. Thus, the resolution of the issue of
probable cause should not bar Enrile from seeking a more detailed averment of the allegations in the
Information.

The Sandiganbayan grossly missed these legal points and thus gravely abused its discretion: it used wrong
and completely inapplicable considerations to support its conclusion.

WHEREFORE, in the light of the foregoing: Lawl ibra ryofCRAlaw

a. We PARTIALLY GRANT the present petition for certiorari, and SET ASIDE the Sandiganbayans
resolutions dated July 11, 2014, which denied Enriles motion for bill of particulars and his motion for
reconsideration of this denial.

b. We DIRECT the People of the Philippines to SUBMIT, within a non-extendible period of fifteen (15)
days from finality of this Decision, with copy furnished to Enrile, a bill of particulars containing the facts
sought that we herein rule to be material and necessary. The bill of particulars shall specifically contain the
following:Lawli bra ryofCRAlaw

1. The particular overt act/s alleged to constitute the combination or series of overt criminal
acts charged in the Information.

2. A breakdown of the amounts of the kickbacks or commissions allegedly received, stating


how the amount of P172,834,500.00 was arrived at.

3. A brief description of the identified projects where kickbacks or commissions were received.

4. The approximate dates of receipt, in 2004 to 2010 or thereabout, of the alleged kickbacks
and commissions from the identified projects. At the very least, the prosecution should state the
year when the kickbacks and transactions from the identified projects were received.

5. The name of Napoles non-government organizations (NGOs) which were the alleged
recipients and/or target implementors of Enriles PDAF projects.

6. The government agencies to whom Enrile allegedly endorsed Napoles NGOs. The particular
person/s in each government agency who facilitated the transactions need not be named as a
particular.
All particulars prayed for that are not included in the above are hereby denied.

SO ORDERED. cralawlawlibra ry

DISSENTING OPINION

CARPIO, J.:

I dissent from the ponencia which partially grants petitioners motion for a bill of particulars and directs the
Ombudsman to file an Amended Information containing the following particulars: Lawlib raryofCRAlaw

1. The particular overt act/s alleged to constitute the combination and series charged in the
Information.

2. A breakdown of the amounts of the kickbacks and commissions allegedly received, stating
how the amount of P172,834,500.00 was arrived at.

3. A brief description of the identified projects where kickbacks and commissions were
received.
4. The approximate dates of receipt, in 2004 to 2010 or thereabout, of the alleged kickbacks
and commissions from the identified projects. At the very least, the prosecution should state
the year when the kickbacks and transactions from the identified projects were received.

5. The name[s] of Napoles non-government organizations (NGOs) which were the alleged
recipients and/or target implementors of Enriles PDAF projects.

6. The government agencies to whom Enrile allegedly endorsed Napoles NGOs. The particular
person/s in each government agency who facilitated the transactions need not anymore be
named as a particular in the Information.1

These particulars do not refer to ultimate facts, but rather to evidentiary matters which unduly
expand the details specifically required in Section 6, Rule 110 of the Rules of Court for a
sufficient Information.

Information Filed Against Petitioner Sufficient

An Information charging a person with an offense is sufficient if, among others, it states the acts or
omissions complained of as constituting the offense, using ordinary and concise language.2 The minimum
requirement is that the allegations in the Information state the basic, ultimate facts constituting the
elements of the offense (and aggravating or qualifying circumstances3) such that if the accused is later on
prosecuted for the same offense, he can claim prior jeopardy.4 All other details can be left out, to be
supplied during the presentation of the prosecutions case during trial. After all, what the Constitution
guarantees to the accused is that he is informed of the nature and cause of the accusation against
him5 and not of the dates, names, amounts, and other sundry details relating to the offense charged. If
a person of common understanding x x x [can] know what offense is being charged x x x,6 then the
Information is free from any taint of deficiency.

Thus, Section 6, Rule 110 of the Rules of Court (Rules) succinctly states: Lawlibra ryofCRAlaw

A complaint or information is sufficient if it states the name of the accused; the designation of the offense
given by the statute; the acts or omissions complained of as constituting the offense; the name of the
offended party; the approximate date of the commission of the offense; and the place where the offense was
committed. (Emphasis supplied)
Petitioner Juan Ponce Enrile (petitioner) stands charged before the Sandiganbayans Third Division
(Sandiganbayan) with the offense of plunder as defined under Republic Act No. 7080 (RA 7080). The
elements of this offense are: Lawlib ra ryofCRAlaw

(1) [T]he offender is a public officer who acts by himself or in connivance with members of his family, relatives
by affinity or consanguinity, business associates, subordinates or other persons;

(2) [H]e amassed, accumulated or acquired ill-gotten wealth through a combination or series of the following
overt or criminal acts described in Section 1(d) of RA 7080 as amended; and

(3) [T]he aggregate amount or total value of the ill-gotten wealth amassed, accumulated or acquired is at
least P50,000,000.00.7
In relation to the second element, the six modes of accumulating ill-gotten wealth under Section 1(d) of RA
7080 are: Lawlib ra ryofCRAlaw

(a) through misappropriation, conversion, misuse, or malversation of public funds or raids on the public
treasury;

(b) by receiving, directly or indirectly, any commission, gift, share, percentage, kickback or any other form of
pecuniary benefits from any person and/or entity in connection with any government contract or project or by
reason of the office or position of the public officer;
(c) by the illegal or fraudulent conveyance or disposition of assets belonging to the National Government or
any of its subdivisions, agencies or instrumentalities of Government owned or controlled corporations or their
subsidiaries;

(d) by obtaining, receiving or accepting directly or indirectly any shares of stock, equity or any other form of
interest or participation including the promise of future employment in any business enterprise or undertaking;

(e) by establishing agricultural, industrial or commercial monopolies or other combinations and/or


implementation of decrees and orders intended to benefit particular persons or special interests; or

(f) by taking advantage of official position, authority, relationship, connection or influence to unjustly enrich
himself or themselves at the expense and to the damage and prejudice of the Filipino people and the Republic
of the Philippines.
The Information filed against petitioner provides: Lawlib raryofCR Alaw

x x x x

In 2004 to 2010 or thereabout, in the Philippines, and within this Honorable Courts jurisdiction, above-named
accused JUAN PONCE ENRILE, then a Philippine Senator, JESSICA LUCILA G. REYES, then Chief of Staff of
Senator Enriles Office, both public officers, committing the offense in relation to their respective offices,
conspiring with one another and with JANET LIM NAPOLES, RONALD JOHN LIM, and JOHN RAYMUND DE ASIS,
did then and there willfully, unlawfully, and criminally amass, accumulate, and/or acquire ill-gotten wealth
amounting to at least ONE HUNDRED SEVENTY TWO MILLION EIGHT HUNDRED THIRTY FOUR THOUSAND
FIVE HUNDRED PESOS (Php172,834,500.00) through a combination or series of overt criminal acts, as
follows:
Law lib raryofCRAlaw

(a) by repeatedly receiving from NAPOLES and/or her representatives LIM, DE ASIS, and others, kickbacks or
commissions under the following circumstances: before, during and/or after the project identification,
NAPOLES gave, and ENRILE and/or REYES received, a percentage of the cost of a project to be funded from
ENRILEs Priority Development Assistance Fund (PDAF), in consideration of ENRILEs endorsement, directly or
through REYES, to the appropriate government agencies, of NAPOLES non-government organizations which
became the recipients and/or target implementors of ENRILEs PDAF projects, which duly-funded projects
turned out to be ghosts or fictitious, thus enabling NAPOLES to misappropriate the PDAF proceeds for her
personal gain;

(b) by taking undue advantage, on several occasions, of their official positions, authority, relationships,
connections, and influence to unjustly enrich themselves at the expense and to the damage and prejudice, of
the Filipino people and the Republic of the Philippines.8
By simply juxtaposing Section 1 and Section 2 of RA 7080, on the one hand, and the allegations in the
Information, on the other hand, it becomes immediately apparent that the Information filed against
petitioner complies with the requirements under the Rules and the Constitution. The Information alleges, in
ordinary and concise language, all the elements of plunder as defined in RA 7080 by stating that: LawlibraryofCR Alaw

(1) Petitioner, an incumbent Philippine Senator, is a public officer[];

(2) Petitioner, together with several co-accused, in conspiracy with them, amass[ed], accumulated and/or
acquired ill-gotten wealth by: Lawlib ra ryofCRAlaw

(a) receiving personally or through a co-accused kickbacks or commissions from another co-accused (Janet
Lim Napoles [Napoles]) in exchange for his endorsement to Napoles non-governmental organizations (NGOs)
of government projects funded by petitioners discretionary funds (falling under Section 1(d)(b) of RA 7080);
and

(b) taking undue advantage of his official position to unjustly enrich himself at the expense and to the damage
and prejudice of the Filipino people (falling under Section 1(d)(f) of RA 7080); and

(3) The total amount of ill-gotten wealth amassed by petitioner and his co-accused is at least P172.8 million
(more than triple the floor amount of P50 million required under Section 2 of RA 7080).
Allegations in the Information not Vague
The procedural remedy, in civil or criminal proceedings, to render vague allegations in the complaint or
Information more specific is the bill of particulars. The details contained in the bill enable the respondent in
the civil proceedings to prepare his responsive pleading,9 and the accused in the criminal proceedings to
properly x x x plead and prepare for trial.10
redarclaw

Petitioners plea for a bill of particulars is grounded on his view that the allegations in the Information filed
against him are a series or combination of conclusions of fact and of law not of fact[s] and circumstance[s]
x x x [constituting] the crime charged.11 He also finds the allegations relating to his receipt of kickbacks from
projects funded by his legislative discretionary funds a bundle of confusing ambiguity.12 redarclaw

Petitioner prays that the prosecution provide him with details relating to the allegations in the
Information on his accumulation of ill-gotten wealth, namely, the overt acts constituting the combination
or series of criminal acts, the names of the persons who received the kickbacks, the names of the persons
who gave them, the breakdown of the amounts received, the dates of receipt, the description of the nature,
location and costs of the government projects funded by his discretionary funds, the dates of launching of the
projects he funded, and the names of the beneficiary NGOs, among others.13 redarclaw

The ponencia finds merit in petitioners theory and orders the prosecution to furnish petitioner most of the
details sought. As a consequence of its ruling, the ponencia directs an amendment of the Information filed
against petitioner.

Petitioner and the ponencia have transformed the nature of an Information from an accusation in writing
charging a person with an offense14 to an initiatory pleading alleging a cause of action.15 Unlike a complaint
in civil proceedings which must contain all the details constituting a cause of action,16 an Information only
needs to state, in ordinary and concise language, the acts or omissions complained of as constituting the
offense such that the accused understands the crime he is being charged with and that when he pleads to
such charge, first jeopardy attaches. In other words, the Information only needs to allege the ultimate
facts constituting the offense for which the accused stands charged, not the finer details of why and how
the illegal acts alleged were committed. This is a long-standing and deeply entrenched rule, applied by this
Court in an unbroken line of ever growing jurisprudence.17reda rclaw

Thus, for the past decade alone, we ruled in Miguel v. Sandiganbayan,18Go v. Bangko Sentral ng
Pilipinas19 and People v. Romualdez,20 all penned by Mr. Justice Brion, that the Informations filed in those
cases did not suffer from any defect as they alleged the ultimate, material facts of the offense for which the
accused stood charged. The accused in Miguel, who stood charged with violation of Section 3(e) of Republic
Act No. 3019 (RA 3019), had argued that the Information filed against him was defective because the
allegation of evident bad faith and manifest partiality within the contemplation of such provision referred to
his co-accused. We rejected such claim, noting that the allegation in question was merely a continuation of
the prior allegation of the acts21 of petitioner and following the rule that [t]he test of the [I]nformations
sufficiency is x x x whether the material facts alleged in the complaint or information shall establish the
essential elements of the offense charged as defined in the law.22 redarclaw

We applied the same rule to reject the claim of the accused in Go, on trial for violation of Republic Act No.
337 (General Banking Act), that the allegations in the Information filed against him were vague, a result of
the prosecutions shotgun approach in framing the Information.23 We found the Information sufficient, as it
complied with the rule that an Information only needs to state the ultimate facts constituting the offense, not
the finer details of why and how the illegal acts alleged amounted to undue injury or damage x x x, adding
that [t]he facts and circumstances necessary to be included in the Information are determined by reference
to the definition and elements of the specific crimes.24 reda rclaw

The accused in Romualdez, like the accused in Miguel, also questioned the sufficiency of the allegations in the
Information filed against him for violation of Section 3(e) of RA 3019, contending that it failed to indicate how
his holding of dual positions caused undue injury to the government. We dismissed the claim, noting that
[t]he allegation of undue injury in the Information, consisting of the extent of the injury and how it was
caused, is complete and that the details behind such element of the offense are matters that are appropriate
for the trial.25 We based this conclusion by reiterating that an Information only needs to state the ultimate
facts constituting the offense.26
redarclaw

During the same decade, we applied the rule in question in People v. Sanico27 (per Reyes, J.), People v.
Banzuela28 (per Leonardo-De Castro, J.), Pielago v. People29 (per Reyes, J.), People v. Rayon30 (per Brion,
J.), People v. Subesa31 (per Mendoza, J.), People v. Anguac32 (per Velasco, J.), Los Baos v. Pedro33 (per
Brion, J.) and People v. Abello34 (per Brion, J.) to determine the offense committed (as opposed to what is
stated in the caption or preamble of the Information). The accused in Sanico was charged with acts of
lasciviousness as penalized under the Revised Penal Code (RPC), although the allegations in the Information
covered the elements for acts of lasciviousness as penalized under Republic Act No. 7610 (RA 7610). In
sustaining the Court of Appeals imposition of the penalty under RA 7610, we ruled that the failure of the
prosecution to allege violation of RA 7610 is not fatal as [t]he character of the crime is not determined by
the caption or preamble of the information nor by the specification of the provision of law alleged to have been
violated, but by the recital of the ultimate facts and circumstances in the complaint or information.35 redarc law

In contrast with the facts in Sanico, the accused in Banzuela stood charged with acts of lasciviousness in
violation of RA 7610 but the Information failed to allege the element under Section 5 of that law that the
victim is a child exploited in prostitution or subjected to other sexual abuse. Thus, we held that the accused
can only be made to suffer the penalty provided for acts of lasciviousness as penalized under the RPC because
the character of the crime is determined neither by the caption or preamble of the information[,] nor by the
specification of the provision of law alleged to have been violated x x x but by the recital of the ultimate facts
and circumstances in the information.36 We applied the same rule in Abello to hold the accused liable for acts
of lasciviousness as penalized under the RPC even though the Information filed against him charged him with
acts of lasciviousness as penalized under RA 7610 on the ground that the prosecution failed to allege and
prove the element of coercion or intimidation as required under Section 5(b) of the latter law.

In Pielago, we held that the amendment of the Information against the accused changing the designation of
the crime alleged from acts of lasciviousness in relation to Section 5(b) of RA 7610 to the crime of rape by
sexual assault penalized under Article 266-A(2)37 of the RPC is not prejudicial to the accused because the
original Information already alleged the elements of the latter felony and the character of the crime is not
determined by the caption or preamble of the information nor from the specification of the provision of law
alleged to have been violated, but by the recital of the ultimate facts and circumstances in the complaint or
information.38 We arrived at the same conclusion in Subesa where the accused was charged with acts of
lasciviousness under RA 7610 but was held liable for rape under Article 266-A(2) of the RPC.

The Court again applied the rule in question in Rayon which presented a variance between the crime
designated and the acts alleged in the Information. In that case, the accused was charged with violation of
Section 10(1), Article VI of RA 7610 (penalizing, among others, other acts of abuse) but the allegations in the
Information made out a violation of Section 5(b) of the same law (penalizing sexual abuse of children). In
holding the accused liable for the latter crime, we reiterated the rule that the character of the crime is not
determined by the caption or preamble of the information x x x but by the recital of the ultimate facts and
circumstances in the complaint or information.39 redarclaw

Anguac, on the other hand, involved an accused who was charged with violation of Section 5(1) of RA 7610
(penalizing acts relating to child prostitution) but the acts alleged in the Information and the evidence
presented during trial made out a case for violation of Section 5(b) of that law (penalizing sexual abuse of
children). In holding the accused liable for the latter offense, we again held that the character of the crime is
determined neither by the caption or preamble of the information x x x but by the recital of the ultimate facts
and circumstances in the information.40redarclaw

Lastly, in Los Baos, which involved an accused who was charged with violation of Section 261(q) of the
Omnibus Election Code and not with violation of its amendatory law, Section 32 of Republic Act No. 7166, we
considered such omission non-consequential because both provisions punish the same act of carrying of
firearms in public places during the election period without the authority of the COMELEC,41 reiterating at the
same time the rule that the character of the crime is not determined by the caption or preamble of the
information x x x [but] by the recital of the ultimate facts and circumstances in the complaint or
information.42redarc law

The Information filed against petitioner in the case at bar complies with the foregoing rule. It alleged that
petitioner, a public official, conspiring with his co-accused Napoles, received from the latter, on several
occasions, kickbacks of more than P50 million from fictitious projects he funded with his legislative
discretionary fund through conduit NGOs controlled by Napoles, unjustly enriching himself. These allegations
state the basic, ultimate facts constituting the elements of plunder as defined under RA 7080. As
aptly observed by the Sandiganbayan: Lawlibra ryofCRAlaw

An objective and judicious reading of the x x x Information shows that there is nothing ambiguous or
confusing in the allegations therein. The Information clearly alleges that accused Enrile and Reyes committed
the offense in relation to their respective public offices and that they conspired with each other and with
accused Napoles, Lim and De Asis, to amass, accumulate, and/or acquire ill-gotten wealth amounting to at
least PhP172,834,500.00. The combination or series of overt criminal acts that the said accused performed
include the following circumstances: before, during and/or after the project identification, Napoles gave, and
accused Enrile and/or Reyes received, a percentage of the cost of a project to be funded from Enriles PDAF,
in consideration of Enriles endorsement, directly or through Reyes, to the appropriate government agencies,
of Napoles non-government organizations (NGOs). These NGOs became the recipients and/or target
implementors of Enriles PDAF projects, which duly-funded projects turned out to be ghosts or fictitious, thus
enabling Napoles to misappropriate the PDAF proceeds for her personal gain. Sub-paragraph (b), on the other
hand, alleges the predicate act that said accused Enrile and Reyes took undue advantage, on several occasions,
of their official positions, authority, relationships, connections, and influence to unjustly enrich themselves at
the expense and to the damage and prejudice, of the Filipino people and the Republic of the Philippines.

The Court finds that the allegations in the subject Information sufficiently comply with the requirements of
Sections 6, 8 and 9 of Rule 10 of the Revised Rules of Criminal Procedure. These allegations adequately apprise
the herein accused of the nature and cause of the accusations against them.43 (Emphasis supplied)
Interestingly, the lack of allegations in an Information for plunder through receipt of kickbacks (among others)
on the (1) the breakdown of the total amount of kickbacks received; (2) dates of receipt of such; (3) the
names of the persons who gave the kickbacks; (4) the names of the persons who received them; and (5) the
combination or series of acts involving the receipt of such kickbacks, did not elicit any complaint of vagueness
from an accused whom petitioners counsel also represented in the Sandiganbayan. The Information for
plunder filed against former President Joseph Estrada in 2001, then represented by Atty. Estelito Mendoza as
lead counsel, alleged that the former received kickbacks breaching the plunder threshold of P50 million without
stating the details in question. The Information reads in relevant parts: Lawlib raryofCR Alaw

That during the period from June, 1998 to January, 2001, in the Philippines, and within the jurisdiction
of this Honorable Court, accused Joseph Ejercito Estrada, then a public officer, being then the President of the
Republic of the Philippines, by himself and/or in connivance/conspiracy with his co-accused, who are members
of his family, relatives by affinity or consanguinity, business associates, subordinates and/or other persons, by
taking undue advantage of his official position, x x x did then and there wilfully, unlawfully and criminally
amass, accumulate and acquire by himself, directly or indirectly, ill-gotten wealth in the aggregate amount or
total value of four billion ninety seven million eight hundred four thousand one hundred seventy three pesos
and seventeen centavos [P4,097,804,173.17], more or less, thereby unjustly enriching himself or
themselves at the expense and to the damage of the Filipino people and the Republic of the
Philippines, through any or a combination or a series of overt or criminal acts, or similar schemes or
means, described as follows:

(a) by receiving or collecting, directly or indirectly, on several instances, money in the aggregate amount
of five hundred forty-five million pesos (P545,000,000.00), more or less, from illegal gambling in the
form of gift, share, percentage, kickback or any form of pecuniary benefit, by himself and/or in
connivance with co-accused Charlie Atong Ang, Jose Jinggoy Estrada, Yolanda T. Ricaforte,
Edward Serapio, and John Does and Jane Does, in consideration of toleration or protection of illegal
gambling;

x x x x

(d) by unjustly enriching himself from commissions, gifts, shares, percentages, kickbacks, or any form
of pecuniary benefits, in connivance with John Does and Jane Does, in the amount of more or less
three billion two hundred thirty three million one hundred four thousand one hundred seventy
three pesos and seventeen centavos [P3,233,104,173.17] and depositing the same under his
account name Jose Velarde at the Equitable-PCI Bank.44 (Emphasis supplied)
That this Court had no occasion to review the clarity of the allegations in the Estrada Information45 for purposes
of issuing a bill of particulars is no argument to ignore the import of such allegations to resolve the case at
bar. On the contrary, Estradas decision not to seek a bill of particulars can only mean that he considered such
allegations clear enough to allow him, with the aid of his counsel, now petitioners counsel, to properly x x x
plead and prepare for trial.46 redarclaw

Information Considered Together With the Preliminary Investigation Resolution

The basis of petitioners indictment before the Sandiganbayan is a 144-page Resolution, dated 28 March 2014,
of the Office of the Ombudsman (Resolution, see Annex A), attached to the Information and furnished to
petitioner, finding probable cause to charge him for the offense of plunder.47The Resolution contains all
the details petitioner sought in his motion for a bill of particulars and which the ponencia
grants (see comparative table in Annex B). Thus, the combination or series of acts committed by
petitioner and his co-accused constituting the offense of plunder, the form of kickbacks received by petitioner,
the breakdown of the total amount of kickbacks petitioner received, the names of persons who gave and
received the kickbacks, the names of the projects funded by petitioners pork barrel funds, their description,
beneficiaries, costs, implementing agencies and partner organizations controlled by petitioners co-accused
Janet Napoles, and the names of the government agencies to which such projects were endorsed are all
found and discussed in the Resolution.48 Petitioner also had access to the documents supporting the
Resolution.49re darc law

The Resolution, already in petitioners possession, taken together with the allegations in the
Information, provide petitioner with the details and information he needs to enable him properly
to plead and prepare for trial. As an inseparable complement to the Information, the Resolution
must be read together with the allegations in the Information to determine whether the allegations
in the Information are vague. It is only when the allegations in the Information, taken together
with the Resolution, leave ambiguities in the basic facts constituting the elements of the offense
of plunder that a bill of particulars should issue. If, as here, the allegations in the Information, taken
together with the Resolution, clearly make out the ultimate facts constituting the elements of plunder, a bill
of particulars is not only unnecessary but also improper.

It will not do for petitioner to feign ignorance of the fact that the Resolution contains the details he seeks from
the prosecution in his motion for a bill of particulars. The Resolution is based on the affidavits of witnesses
and other public documents which petitioner thoroughly parsed and attacked in his Omnibus Motion, dated 10
June 2014, filed before the Sandiganbayan, to dismiss the case against him.50 For the same reason,
petitioners demonstrated familiarity with the details relating to the allegations in the Information filed against
him overcomes the presumption that he has no independent knowledge of the facts that constitute the
offense51 of which he is charged.

Considering the ultimate facts alleged in the Information together with the relevant facts alleged in the
Resolution indisputably involves a procedural matter, which does not encompass any constitutional right of an
accused. It is an act which every accused expectedly undertakes in order to inform himself of the charges
against him and intelligently prepare his defense. In short, it deals precisely with how the accused should
defend himself.

Since reading the Information together with the Resolution concerns a procedural rule, and in fact is actually
practiced at all times by every accused, there is no basis to require such practice to be conducted prospectively,
that is, only after the promulgation of the decision in the case at bar, absent any clear showing of impairment
of substantive rights.52reda rclaw

Generally, rules of procedure can be given retroactive effect. It is axiomatic that the retroactive application
of procedural laws does not violate any right of a person who may feel that he is adversely affected, nor is it
constitutionally objectionable. The reason for this is that, as a general rule, no vested right may attach to, nor
arise from, procedural laws.53redarclaw

Further, requiring the accused to consider the allegations in the Information together with the allegations in
the Resolution does not in any way prejudice any constitutional or substantive rights of the accused. On the
contrary, such act benefits immensely the accused insofar as it adequately apprises him of the charges against
him and clarifies the allegations in the Information.

Jurisprudence Cited by the Ponencia Inapplicable

The cases invoked by the ponencia as precedents for granting a bill of particulars to petitioner Republic v.
Sandiganbayan,54Tantuico v. Republic55 and Virata v. Sandiganbayan,56 among others are not in point
because none of them involved an accused who, like petitioner, underwent preliminary investigation where he
was afforded access to documents supporting the charge against him. All those cases involved civil
proceedings for the forfeiture of ill-gotten wealth where the respondents had no way of knowing the details of
the governments case against them until after they were served a copy of the forfeiture complaints. The
ambiguities in the allegations of the complaints filed against the respondents in those cases cannot be clarified
by reference to other documents akin to a preliminary investigation resolution. They were left with no other
recourse but to seek clarification through a bill of particulars in order to adequately prepare their responsive
pleadings.

Plunder Charge Not Unique


According to the ponencia, conviction for plunder carries with it the penalty of capital punishment, for this
reason, more process is due, not less.57 The ponencia seeks to impress that those accused of the crime of
plunder must be extended special treatment, requiring evidentiary matters to be alleged in the Information,
in view of the penalty involved, which is reclusion perpetua.

The penalty of reclusion perpetua is not imposable exclusively to those accused and found guilty of plunder.
This punishment likewise attaches to the crimes of murder,58 serious illegal detention,59 and rape,60 among
others. Meanwhile, syndicated estafa,61 qualified trafficking in persons,62 possession of prohibited drugs63 and
illegal recruitment in large scale64 carry with it the penalty of life imprisonment, which is a penalty harsher
than reclusion perpetua.

The ponencia gravely implies that a plunder charge uniquely places an accused in a more protective mantle,
by requiring the prosecution to allege in the Information very specific details of evidentiary nature, due to the
stiff penalty involved. In contrast, the Informations for other crimes, which do not even involve pilfering of
public funds but likewise carry the penalty of reclusion perpetua or even, life imprisonment, are merely
required to contain allegations of ultimate facts.

The ponencia exaggerates the crime of plunder by implying that it is a very complex crime involving intricate
predicate criminal acts and numerous transactions and schemes that span a period of
time.65 The ponencia unreasonably classifies plunder as a crime more complicated to commit than other
crimes similarly punishable with reclusion perpetua or with the more severe penalty of life imprisonment. As
a consequence, the ponencia unjustifiably treats those accused of plunder extraordinarily. There is plainly no
basis for such special treatment.

Suffice it to state, plunder is no more complex than murder or syndicated estafa, or any other crime. For
instance, there is plunder if the accused public officer acquired ill-gotten wealth by committing two acts of
malversation of public funds with a total amount of at least P50,000,000. Murder, on the other hand, involves
killing another person attended by any of the qualifying circumstances in Article 248 of the Revised Penal
Code. Meanwhile, syndicated estafa is committed by five or more persons formed with the intention of
defrauding members of associations and misappropriating the latter's money. Simply put, the rule requiring
merely the ultimate facts to be alleged in the Information applies equally to all types of crimes or offenses,
regardless of the nature thereof. Otherwise, to accord those accused with plunder an exceptional treatment,
by requiring the prosecution to allege in the Information all the unnecessary finer details in the commission
of plunder, denies those charged with similarly serious or more serious crimes the equal protection of the law.

Pernicious Consequences in Granting the Petition

The ponencias disposition of this case to (1) set aside the ruling of the Sandiganbayan as having been
rendered with grave abuse of discretion even though the Sandiganbayan merely followed existing law in the
proper exercise of its discretion; (2) order the prosecution to provide petitioner with most of the details listed
in his motion for a bill of particulars even though petitioner had access to and possess such details; and (3)
direct the prosecution to amend the Information filed against petitioner in light of its finding that the allegations
in the Information are vague even though they are clear, throws in disarray the orderly application of remedial
rules in criminal proceedings. The ponencia turns on its head the purpose of remedial rules of securing a just
x x x disposition of every action x x x.66
redarclaw

More alarmingly, the ruling unwittingly opens the door for persons presently facing prosecution to seek re-
arraignment and new trial. By mutating the nature of an Information to require allegation not only of the
ultimate facts constituting the elements of the offense charged but also all the details substantiating them,
ostensibly to satisfy the procedural due process right of the accused, the ponencia not only repeals Rules of
Court provisions on the nature and content of an Information,67 but also vastly expands the breadth of the
procedural due process right of the accused to a degree unheard of since the advent of criminal procedure in
this jurisdiction. As a new doctrine favoring the accused, the ruling hands to any person facing criminal
prosecution today a new doctrinal basis to demand re-arraignment and re-trial on the ground of denial of due
process. The Informations filed against these persons alleged only the ultimate facts, devoid of supporting
details, following the Rules of Court and relevant jurisprudence.

The Court foresaw and prevented a similar scenario from unfolding in the recent case of Estrada v.
Ombudsman68 where the petitioner, also a public official undergoing prosecution for plunder, sought to
redefine the nature of preliminary investigation to make it comparable to administrative proceedings. We
rejected such theory, cognizant of the nightmarish chaos it would unleash on the countrys criminal justice
system: Lawlib raryofCRAlaw

[T]o x x x declare that the guidelines in Ang Tibay, as amplified in GSIS, are fundamental and essential
requirements in preliminary investigations will render all past and present preliminary investigations invalid
for violation of constitutional due process. This will mean remanding for reinvestigation all criminal cases now
pending in all courts throughout the country. No preliminary investigation can proceed until a new law
designates a public officer, outside of the prosecution service, to determine probable cause. Moreover, those
serving sentences by final judgment would have to be released from prison because their conviction violated
constitutional due process.69 (Emphasis supplied)
Estrada is a cautionary tale against tinkering with settled rules of criminal procedure in the guise of affording
the accused his constitutional due process right.

On the other hand, the pernicious practical implications of the ponencia are: (1) the discretion of trial court
judges, so vital in the performance of their day-to-day functions, will be hamstrung by this Courts loose
application of the heightened certiorari standard of review of grave, not simple, abuse of discretion; (2) the
remedy of a bill of particulars will become a de riguer tool for the accused awaiting arraignment to delay
proceedings by simply claiming that the allegations in the Information filed against him are vague even though,
taken together with the preliminary investigation resolution, they clearly state the ultimate facts constituting
the elements of the offense charged; and (3) the prosecutorial arm of the government, already hampered
with inadequate resources, will be further burdened with the task of collating for the accused the details on
the allegations in the Information filed against him even though such are found in the preliminary investigation
resolution.

The entire rubric of the rules of criminal procedure rests on the guarantee afforded by the Constitution that
no person shall be held to answer for a criminal offense without due process of law.70 The due process of
law contemplated in this guarantee, however, means procedure bounded by reason. It does not envision
procedure defying law, logic and common sense.

Accordingly, I vote to DISMISS the petition for lack of grave abuse of discretion on the part of the
Sandiganbayan (Third Division).

G.R. No. 213847, July 12, 2016

JUAN PONCE ENRILE, Petitioner, v. SANDIGANBAYAN (THIRD DIVISION), AND PEOPLE OF THE
PHILIPPINES., Respondents.

RESOLUTION

BERSAMIN, J.:

The People of the Philippines, represented by the Office of the Special Prosecutor of the Office of the
Ombudsman, have filed their Motion for Reconsideration to assail the decision promulgated on August 18,
2015 granting the petition for certiorari of the petitioner, and disposing thusly: ChanRobles Virtualawl ibra ry

WHEREFORE, the Court GRANTS the petition for certiorari; ISSUES the writ
of certiorari ANNUL[L]ING and SETTING ASIDE the Resolutions issued by the Sandiganbayan (Third
Division) in Case No. SB-14-CRM-0238 on July 14, 2014 and August 8, 2014; ORDERS the PROVISIONAL
RELEASE of petitioner Juan Ponce Enrile in Case No. SB-14-CRM-0238 upon posting of a cash bond of
P1,000,000.00 in the Sandiganbayan; and DIRECTS the immediate release of petitioner Juan Ponce Enrile
from custody unless he is being detained for some other lawful cause.

No pronouncement on costs of suit.

SO ORDERED.1 chanroblesv irt uallawl ibra ry

The People rely on the following grounds for the reversal of the decision of August 18, 2015, to wit: ChanRobles Virtualawl ibra ry
I. THE DECISION GRANTING BAIL TO PETITIONER WAS PREMISED ON A FACTUAL FINDING
THAT HE IS NOT A FLIGHT RISK, ON A DETERMINATION THAT HE SUFFERS FROM A
FRAGILE STATE OF HEALTH AND ON OTHER UNSUPPORTED GROUNDS UNIQUE AND
PERSONAL TO HIM. IN GRANTING BAIL TO PETITIONER ON THE FOREGOING GROUNDS,
THE DECISION UNDULY AND RADICALLY MODIFIED CONSTITUTIONAL AND PROCEDURAL
PRINCIPLES GOVERNING BAIL WITHOUT SUFFICIENT CONSTITUTIONAL, LEGAL AND JURIS
PRUDENTIAL BASIS.
A. THE DECISION OPENLY IGNORED AND ABANDONED THE CONSTITUTIONALLY-
MANDATED PROCEDURE FOR DETERMINING WHETHER A PERSON ACCUSED OF A
CRIME PUNISHABLE BY RECLUSION PERPETUA OR LIFE IMPRISONMENT SUCH AS
PLUNDER CAN BE GRANTED BAIL.

B. THE DECISION ALSO DISREGARDED CONSTITUTIONAL PRINCIPLES AND


RELEVANT COURT PROCEDURES WHEN IT GRANTED PETITIONER'S REQUEST FOR
BAIL ON THE GROUND THAT HE IS NOT A FLIGHT RISK, PREMISED ON A LOOSE
FINDING THAT THE PRINCIPAL PURPOSE OF BAIL IS MERELY TO SECURE THE
APPEARANCE OF AN ACCUSED DURING TRIAL.

C. CONTRARY TO THE STRICT REQUIREMENTS OF THE 1987 CONSTITUTION ON THE


MATTER OF GRANTING BAIL TO PERSONS ACCUSED OF CRIMES PUNISHABLE
BY RECLUSION PERPETUA OR LIFE IMPRISONMENT, THE DECISION ERRONEOUSLY
HELD THAT PETITIONER SHOULD BE GRANTED BAIL BECAUSE OF HIS FRAGILE
STATE OF HEALTH, AND BECAUSE OF OTHER UNSUPPORTED AND DEBATABLE
GROUNDS AND CIRCUMSTANCES PURELY PERSONAL AND PECULIAR TO HIM,
WITHOUT REFERENCE TO THE STRENGTH OF THE PROSECUTION'S EVIDENCE
AGAINST HIM.

II. THE DECISION VIOLATES THE PEOPLE'S CONSTITUTIONAL RIGHT TO DUE PROCESS OF
LAW SINCE IT WAS BASED ON GROUNDS NOT RAISED IN THE PETITION AND THEREFORE
NEVER REFUTED OR CONTESTED.

III. THE DECISION GAVE PREFERENTIAL TREATMENT AND UNDUE FAVOR TO PETITIONER IN A
MANNER INCONSISTENT WITH THE EQUAL PROTECTION CLAUSE OF THE 1987
CONSTITUTION.2

The People argue that the decision is inconsonant with deeply-embedded constitutional principles on the
right to bail; that the express and unambiguous intent of the 1987 Constitution is to place persons accused
of crimes punishable by reclusion perpetua on a different plane, and make their availment of bail a matter of
judicial discretion, not a matter of right, only upon a showing that evidence of their guilt is not strong; and
that the Court should have proceeded from the general proposition that the petitioner had no right to bail
because he does not stand on equal footing with those accused of less grave crimes.

The People contend that the grant of provisional liberty to a person charged with a grave crime cannot be
predicated solely on the assurance that he will appear in court, but should also consider whether he will
endanger other important interests of the State, the probability of him repeating the crime committed, and
how his temporary liberty can affect the prosecution of his case; that the petitioner's fragile state of health
does not present a compelling justification for his admission to bail; that age and health considerations are
relevant only in fixing the amount of bail; and that even so, his age and health condition were never raised
or litigated in the Sandiganbayan because he had merely filed thereat a Motion to Fix Bail and did not
thereby actually apply for bail.

Lastly, the People observe that the decision specially accommodated the petitioner, and thus accorded him
preferential treatment that is not ordinarily enjoyed by persons similarly situated.

Ruling of the Court

The Court finds no compelling or good reason to reverse its decision of August 18, 2015.

To start with, the People were not kept in the dark on the health condition of the petitioner. Through
his Omnibus Motion dated June 10, 2014 and his Motion to Fix Bail dated July 7, 2014, he manifested to the
Sandiganbayan his currently frail health, and presented medical certificates to show that his physical
condition required constant medical attention.3 The Omnibus Motion and his Supplemental Opposition dated
June 16, 2014 were both heard by the Sandiganbayan after the filing by the Prosecution of its Consolidated
Opposition.4 Through his Motion for Reconsideration, he incorporated the findings of the government
physicians to establish the present state of his health. On its part, the Sandiganbayan, to satisfy itself of the
health circumstances of the petitioner, solicited the medical opinions of the relevant doctors from the
Philippine General Hospital.5 The medical opinions and findings were also included in the petition
for certiorari and now form part of the records of the case.

Clearly, the People were not denied the reasonable opportunity to challenge or refute the allegations about
his advanced age and the instability of his health even if the allegations had not been directly made in
connection with his Motion to Fix Bail.

Secondly, the imputation of "preferential treatment" in "undue favor" of the petitioner is absolutely bereft of
basis.6 A reading of the decision of August 18, 2015 indicates that the Court did not grant his provisional
liberty because he was a sitting Senator of the Republic. It did so because there were proper bases - legal as
well as factual - for the favorable consideration and treatment of his plea for provisional liberty on bail. By
its decision, the Court has recognized his right to bail by emphasizing that such right should be curtailed
only if the risks of flight from this jurisdiction were too high. In our view, however, the records
demonstrated that the risks of flight were low, or even nil. The Court has taken into consideration other
circumstances, such as his advanced age and poor health, his past and present disposition of respect for the
legal processes, the length of his public service, and his individual public and private reputation.7 There was
really no reasonable way for the Court to deny bail to him simply because his situation of being 92 years of
age when he was first charged for the very serious crime in court was quite unique and very rare. To ignore
his advanced age and unstable health condition in order to deny his right to bail on the basis alone of the
judicial discretion to deny bail would be probably unjust. To equate his situation with that of the other
accused indicted for a similarly serious offense would be inherently wrong when other conditions significantly
differentiating his situation from that of the latter's unquestionably existed.8 cha nro bleslaw

Section 2, Rule 114 of the Rules of Court expressly states that one of the conditions of bail is for the accused
to "appear before the proper court whenever required by the court or these Rules." The practice of bail
fixing supports this purpose. Thus, in Villaseor v. Abao,9 the Court has pronounced that "the principal
factor considered (in bail fixing), to the determination of which most factors are directed, is the probability
of the appearance of the accused, or of his flight to avoid punishment."10The Court has given due regard to
the primary but limited purpose of granting bail, which was to ensure that the petitioner would appear
during his trial and would continue to submit to the jurisdiction of the Sandiganbayan to answer the charges
levelled against him.11chan roble slaw

Bail exists to ensure society's interest in having the accused answer to a criminal prosecution without unduly
restricting his or her liberty and without ignoring the accused's right to be presumed innocent. It does not
perform the function of preventing or licensing the commission of a crime. The notion that bail is required to
punish a person accused of crime is, therefore, fundamentally misplaced. Indeed, the practice of admission
to bail is not a device for keeping persons in jail upon mere accusation until it is found convenient to give
them a trial. The spirit of the procedure is rather to enable them to stay out of jail until a trial with all the
safeguards has found and adjudged them guilty. Unless permitted this conditional privilege, the individuals
wrongly accused could be punished by the period of imprisonment they undergo while awaiting trial, and
even handicap them in consulting counsel, searching for evidence and witnesses, and preparing a
defense.12 Hence, bail acts as a reconciling mechanism to accommodate both the accused's interest in
pretrial liberty and society's interest in assuring his presence at trial.13
chanrobles law

Admission to bail always involves the risk that the accused will take flight.14 This is the reason precisely why
the probability or the improbability of flight is an important factor to be taken into consideration in granting
or denying bail, even in capital cases. The exception to the fundamental right to bail should be applied in
direct ratio to the extent of the probability of evasion of prosecution. Apparently, an accused's official and
social standing and his other personal circumstances are considered and appreciated as tending to render
his flight improbable.15 cha nro bleslaw

The petitioner has proven with more than sufficient evidence that he would not be a flight risk. For one, his
advanced age and fragile state of health have minimized the likelihood that he would make himself scarce
and escape from the jurisdiction of our courts. The testimony of Dr. Jose C. Gonzales, Director of the
Philippine General Hospital, showed that the petitioner was a geriatric patient suffering from various medical
conditions,16 which, singly or collectively, could pose significant risks to his life. The medical findings and
opinions have been uncontested by the Prosecution even in their present Motion for Reconsideration.

WHEREFORE, the Court DENIES the Motion for Reconsideration for lack of merit.

SO ORDERED. chanRoblesvirt ual Lawlib rar

SEPARATE CONCURRING OPINION

BRION, J.:

I write this Separate Opinion to reflect my view and explain my vote on the deliberations of the Court En
Banc on August 18, 2015 on the issue of the provisional release of petitioner Juan Ponce Enrile from
detention. I also explain in this Opinion why I vote to deny the motion for reconsideration filed by the People
of the Philippines.

On August 18, 2015, the Court, voting 8-4, granted the petition for certiorari filed by Enrile to assail and
annul the resolutions dated July 14, 2014 and August 8, 2014 issued by the Sandiganbayan (Third Division)
in Case No. SB-14-CRM-0238. The dispositive portion of this decision provides: ChanRob les Virtualawl ibra ry

WHEREFORE, the Court GRANTS the petition for certiorari; ISSUES the writ
of certiorari ANNULING and SETTING ASIDE the Resolutions issued by the Sandiganbayan (Third Division)
in Case No. SB-14-CRM-0238 on July 14, 2014 and August 8, 2014; ORDERS the PROVISIONAL
RELEASE of petitioner Juan Ponce Enrile in Case No. SB-14-CRM-0238 upon posting of a cash bond of
P1,000,000.00 in the Sandiganbayan; and DIRECTS the immediate release of petitioner Juan Ponce Enrile
from custody unless he is being detained for some other lawful cause.

No pronouncement on costs of suit.

SO ORDERED.
The People, through the Office of the Special Prosecutor, moved to reconsider this decision, and claimed that
the grant of bail to Enrile "unduly and radically modified constitutional and procedural principles governing
bail without sufficient constitutional, legal and jurisprudential basis."1 It argued that since Enrile was
charged with a grave crime punishable by reclusion perpetua to death, he cannot be admitted to bail as a
matter of right unless it had been determined that evidence of his guilt was not strong.

The People further alleged that the ponencia erred in granting Enrile provisional liberty on the erroneous
premise that the principal purpose of bail is to ensure the appearance of the accused during trial. It
maintained that the grant of provisional liberty must be counter-balanced with the legitimate interests of the
State to continue placing the accused under preventive detention when circumstances warrant.

The People further claimed that there is no obligation on the part of the State to allow Enrile to post bail
even under international law since the latter's detention was an incident of a lawful criminal prosecution. It
added that age and health are not relevant in the determination of whether the evidence of guilt against
Enrile is strong; and that "there is no provision in the 1987 Constitution, in any statute or in the Rules of
Court"2 that allows the grant of bail for humanitarian considerations.

The People likewise claimed that its constitutional right to due process had been violated since the Court
granted provisional liberty to Enrile based on grounds that were not raised by Enrile in connection with his
bail request.

Finally, the People alleged that the ponencia violated the equal protection clause of the 1987 Constitution
when it "gave preferential treatment and undue favor"3 to Enrile.

My Position:

I reiterate that Enrile should be admitted to bail. I likewise vote to deny the motion for reconsideration filed
by the Office of the Special Prosecutor.

The Right to Bail and the Court's Equity Jurisdiction

Our Constitution zealously guards every person's right to life and liberty against unwarranted state
intrusion; indeed, no state action is permitted to invade this sacred zone except upon observance of due
process of law.

Like the privilege of the writ of habeas corpus, the right to bail provides complete substance to
the guarantee of liberty under the Constitution; without it, the right to liberty would not be meaningful,
while due process would almost be an empty slogan.4 A related right is the right to be presumed
innocent from where, the right to bail also draws its strength.

Bail is accorded to a person under the custody of the law who, before conviction and while he enjoys the
presumption of innocence, may be allowed provisional liberty upon the filing of a bond to secure his
appearance before any court, as required under specified conditions.5 State interest is recognized through
the submitted bond and by the guarantee that the accused would appear before any court as required under
the terms of the bail.

In Leviste v. Court of Appeals,6 the Court explained the nature of bail in the following manner: ChanRoblesVirtualawl ibra ry

Bail, the security given by an accused who is in the custody of the law for his release to guarantee his
appearance before any court as may be required, is the answer of the criminal justice system to a vexing
question: what is to be done with the accused, whose guilt has not yet been proven, in the "dubious interval,"
often years long, between arrest and final adjudication. Bail acts as a reconciling mechanism to accommodate
both the accused's interest in pretrial liberty and society's interest in assuring the accused's presence at trial.
The constitutional mandate is that "[a]ll persons, except those charged with offenses punishable
by reclusion perpetua when evidence of guilt is strong, shall, before conviction, be bailable by sufficient
sureties, or be released on recognizance as may be provided by law. x x x."7 chanrobleslaw

Under this provision, bail is clearly a demandable constitutional right; it only ceases to be so recognized
when evidence of guilt of the person - charged with a crime that carries the penalty of reclusion perpetua,
life imprisonment, or death - is found to be strong. From the perspective of innocence, this degree of
evidence apparently renders less certain the presumption of innocence that the accused enjoys before
conviction.

But while bail is separately treated for those charged with a crime that carries the penalty of reclusion
perpetua or higher, the Constitution does not expressly and absolutely prohibit the grant of bail
even for the accused who are so charged.

If the evidence of guilt is not strong, as the courts may determine in their discretion, then the accused may
be demanded still as of right.

If the evidence of guilt, on the other hand, is strong, this preliminary evaluation, made prior to conviction,
may render the presumption of innocence lighter in its effects, but does not totally negate it;
constitutionally, the presumption of innocence that the accused enjoys still exists as only final conviction
erases it.

Hand in hand with these thoughts, I have considered the judicial power that the courts have been granted
under the Constitution. This power includes the duty to settle actual controversies involving rights which
are legally demandable and enforceable. It likewise encompasses the protection and enforcement of
constitutional rights, through promulgated rules that also cover pleading, practice and procedure.8 chanro bleslaw

I hold the view that judicial power, by its express terms, is inclusive rather than exclusive: the specific
powers mentioned in the Constitution do not. constitute the totality of the judicial power that the
Constitution grants the courts. Time and again, the Supreme Court has given this constitutional reality due
recognition by acting, not only within the clearly defined parameters of the law, but also within
that penumbral area not definitively defined by the law but not excluded from the Court's authority by the
Constitution and the law.
The Court has particularly recognized its authority to so act if sufficiently compelling reasons exist that
would serve the ends of the Constitution - the higher interests of justice, in this case, the protection and
recognition of the right to liberty based on the special circumstances of the accused.

A prime example of an analogous Court action would be in the case of Leo Echagaray where the Court
issued a temporary restraining order (TRO) to postpone the execution of Echegaray and asserted its
authority to act even in the face of the clear authority of the President to implement the death penalty.

In Echegaray v. Secretary of Justice,9 the public respondents (Secretary of Justice, et al.) questioned the
Court's resolution dated January 4, 1999 temporarily restraining the execution of Leo Echegaray and
argued, among others, that the decision had already become final and executory, and that the grant of
reprieve encroaches into the exclusive authority of the executive department to grant reprieve.

In ruling that it had jurisdiction to issue the disputed TRO, the Court essentially held that an [a]ccused who
has been convicted by final judgment still possesses collateral rights and these rights can be claimed in the
appropriate courts. We further reasoned out that the powers of the Executive, the Legislative and the
Judiciary to save the life of a death convict do not exclude each other for the simple reason that there is no
higher right than the right to life.10 chanroble slaw

While Echegaray did not involve the right to bail, it nonetheless shows that the Court will not hesitate to
invoke its jurisdiction to effectively safeguard constitutional rights and liberties.

In Secretary of Justice v. Hon. Lantion,11 the Court applied what it termed as "rules of fair play" so as not to
deny due process to Mark Jimenez during the evaluation process of an extradition proceeding.

In this case, the United States Government requested the Philippine Government for the extradition of Mark
Jimenez to the United States. The Secretary of Foreign Affairs forwarded this request to the Department of
Justice. Pending the evaluation of the extradition documents by the DOJ, Jimenez requested for copies of
the official extradition request and all pertinent documents, and the holding in abeyance of the proceedings.

When the DOJ denied his request for being premature, Jimenez filed an action for mandamus, certiorari and
prohibition before the Regional Trial Court, Branch 25, Manila. The RTC issued an order directing the
Secretary of Justice, the Secretary of Foreign Affairs, and the NBI to maintain the status quo by refraining
from conducting proceedings in connection with the extradition request of the US Government. The
Secretary of Justice questioned the RTC's order before this Court.

In dismissing this petition, the Court ruled that although the Extradition Law does not specifically indicate
whether the extradition proceeding is criminal, civil, or a special proceeding, the evaluation process -
understood as the extradition proceedings proper - belongs to a class by itself; it is sui generis. The Court
thus characterized the evaluation process to be similar to a preliminary investigation in criminal
cases so that certain constitutional rights are available to the prospective extraditee. Accordingly, the Court
ordered the Secretary of Justice to furnish Jimenez copies of the extradition request and its supporting
papers, and lo grant him a reasonable time within which to file his comment with supporting evidence.

The Court explained that although there was a gap in the provisions of the RP-US Extradition Treaty
regarding the basic due process rights available to the prospective extradite at. the evaluation stage of the
proceedings, the prospective extraditee faces the threat of arrest, not only after the extradition petition is
filed in court, but even during, the evaluation proceeding itself by virtue of the provisional arrest allowed
under the treaty and the implementing law. It added that the Rules of Court guarantees the respondent's
basic due process rights in a preliminary investigation, granting him the right to be furnished a copy of the
complaint, the affidavits and other supporting documents, and the right to submit counter-affidavits and
other supporting documents, as well as the right to examine all other evidence submitted by the
complainant.

While the Court in Lantion applied the "rules of fair play" and not its equity jurisdiction, the distinction
between the two with respect to this case, to me, is just pure semantics. I note in this case that the Court
still recognized Jimenez's right to examine the extradition request and all other pertinent documents
pertaining to his extradition despite the gap in the law regarding the right to due process of the person
being extradited during the evaluation stage.
Based on these constitutional considerations, on the dictates of equity and the need to serve the higher
interest of justice, I believe that it is within the authority of the Court to inquire if the special circumstances
the accused submitted are sufficiently compelling reasons for the grant of bail to Enrile.

Equity jurisdiction is used to describe the power of the court to resolve issues presented in a case in
accordance with natural rules of fairness and justice in the absence of a clear, positive law governing the
resolution of the issues posed.12 Equity jurisdiction aims to do complete justice in cases where a court of
law is unable to adapt its judgments to the special circumstances of a case because of the inflexibility of its
statutory or legal jurisdiction. Equity is the principle by which substantial justice may be attained in cases
where the prescribed or customary forms of ordinary law are inadequate.13 chanrobles law

In Daan v. Hon. Sandiganbayan (Fourth Division),14 we further expounded on this concept as follows: ChanRobles Vi rtualaw lib rary

Equity as the complement of legal jurisdiction seeks to reach and do complete justice where courts of law,
through the inflexibility of their rules and want of power to adapt their judgments to the special circumstances
of cases, are incompetent so to do. Equity regards the spirit of and not the letter, the intent and not the form,
the substance rather than the circumstance, as it is variously expressed by different courts.
I am not unaware that courts exercising equity jurisdiction must still apply the law and have no discretion to
disregard the law.15 Equitable principles must always remain subordinate to positive law, and cannot be
allowed to subvert it, nor do these principles give to the Courts authority to make it possible to do
so.16 Thus, where the law prescribes a particular remedy with fixed and limited boundaries, the court
cannot, by exercising equity jurisdiction, extend the boundaries further than the law allows.17 As the Court
explained in Mangahas v. Court of Appeals:18

For all its conceded merits, equity is available only in the absence of law and not as its replacement. Equity is
described as justice outside legality, which simply means that it cannot supplant although it may, as often
happens, supplement the law. x x x all abstract arguments based only on equity should yield to positive rules,
which pre-empt and prevail over such persuasions. Emotional appeals for justice, while they may wring the
heart of the Court, cannot justify disregard of the mandate of the law as long as it remains in force.

Similarly, in Phil. Rabbit Bus Lines, Inc. v. Judge Arciaga,19 the Court held [t]hat there are instances,
indeed, in which a court of equity gives a remedy, where the law gives none; but where a particular remedy
is given by the law, and that remedy is bounded and circumscribed by particular rules, it would be very
improper for the court to take it up where the law leaves it and to extend it further than the law allows.

Where the libertarian intent of the Constitution, however, is beyond dispute; where this same Constitution
itself does not substantively prohibit the grant of provisional liberty even to those charged with crimes
punishable with reclusion perpetua where evidence of guilt is strong; and where exceptional circumstances
are present as compelling reasons for humanitarian considerations, I submit that the Court does not stray
from the parameters of judicial power if it uses equitable considerations in resolving a case.

I note in this regard that together with Section 13, Article III of the Constitution which provides that: ChanRobles Virtualawl ibra ry

[a]ll persons, except those charged with offenses punishable by reclusion perpetua when evidence
of guilt is strong, shall, before conviction, be bailable by sufficient sureties, or be released on recognizance
as may be provided by law. x x x
Section 7 of Rule 114 of the Revised Rules of Court states that no person charged with a capital offense, or
an offense punishable by reclusion perpetua or life imprisonment when the evidence of guilt is strong, shall
be admitted to bail regardless of the stage of the criminal action. Thus, seemingly, there exists a law or, to
be exact, a remedial rule, that forecloses the grant of bail to an accused who falls within the exception
identified under Section 13, Article III of the Constitution.

Rule 114 of the Revised Rules of Court, however, cannot foreclose the exercise by the Court of a
discretionary grant of bail because the constitutional provision on bail speaks only of bail as a matter of right
and does not prohibit a discretionary grant by the courts, particularly by the Supreme Court which is the
fountainhead of all rules of procedure and which can, when called for, suspend the operation of a rule of
procedure. In hierarchal terms, the constitutional provision on bail occupies a very much higher plane than a
procedural rule.

Notably, Rule 114 directly addresses the grant of a right under the constitutional provision - a situation
where no equitable considerations are taken into account. In this situation, the Court's hands are in fact tied
as it must comply with the direct command of the Constitution.

But when compelling circumstances exist, as has been described above, the situation cannot but change and
shifts into that penumbral area that is not covered by the exact parameters of the express words of the
Constitution yet is not excluded by it. In this domain, when compelling reasons exist to carry into effect the
intent of the Constitution, equity can come into play.

I reiterate that the fundamental consideration in confining an accused before conviction is to assure his
presence at the trial. The denial of bail in capital offense is on the theory that the proof being strong, the
defendant would flee, if he has the opportunity, rather than face a verdict in court. Hence, the exception to
the fundamental right to be bailed should be applied in direct ratio to the extent of the probability of the
evasion of the prosecution.20 chanroble slaw

As the ponencia recognized, these circumstances are Enrile's advanced age (91), his state of health (he has
been in and out of hospital before and since his arrest, a condition that is not surprising based on his age
alone), and the almost nil chance that Enrile would evade arrest.

Dr. Jose C. Gonzales, the Director of the PGH, testified that Enrile underwent clinical and laboratory
examinations, as well as pulmonary evaluation and pulmonary function tests on various dates on August
2014, and was found to be suffering from the following conditions: ChanRoble sVirt ualawli bra ry

(1) Chronic Hypertension with fluctuating blood pressure levels on


multiple drug theraphy;

(2) Diffuse atherosclerotic cardiovascular disease composed of the


following:

a. Previous history of cerebrovascular disease with carotid and


vertebral artery disease;

b. Heavy coronary artery calcifications;

c. Ankle Brachial Index suggestive of arterial calcifications.

(3) Atrial and ventricular Arrhythmia (irregular heartbeat) documented


by Holter monitoring;
(4) Asthma-COPD Overlap Syndrome and postnasal drip syndrome;

(5) Ophthalmology:

a. Age-related macular degeneration, neovascular s/p laser of the


Retina, s/p Lucentis intra-ocular injections

b. S/p Cataract surgery with posterior chamber intraocular lens

(6) Historical diagnoses of the following:

a. High blood sugar/diabetes on medications;

b. High cholesterol levels/dyslipidemia;

c. Alpha thalassemia;

d. Gait/balance disorder;

e. Upper gastrointestinal bleeding (etiology uncertain) in 2014;

f. Benign prostatic hypertrophy (with documented enlarged


prostate on recent ultrasound).
In his Manifestation and Compliance, Dr. Gonzales further added that "the following medical conditions of
Senator Enrile pose a significant risk for life-threatening events": (1) fluctuating hypertension, which may
lead to brain or heart complications, including recurrence of stroke; (2) arrhythmias, which may lead to fatal
or nonfatal cardiovascular events; (3) diffuse atherosclerotic vascular disease may indicate a high risk for
cardiovascular events; (4) exacerbations of asthma-COPD Overlap Syndrome may be triggered by certain
circumstances (excessive heat, humidity, dust or allergen exposure) which may cause a deterioration in
patients with Asthma or COPD.
During the July 14, 2014 hearing, the witness-cardiologist expounded on the delicate and unpredictable
nature of Enrile's arrhythmia under the following exchange with the court: ChanRobles Vi rtualaw lib rary

AJ MARTIRES:

Q: So, the holter monitoring was able to record that the accused is
suffering from arrhythmia?

What is arrhythmia, Doctor?

CARDIOLOGIST:

A: Arrhythmia is an irregular heartbeat. We just reviewed the holter of


Senator Enrile this morning again, prior to coming here, and we
actually identified the following irregularities:

There were episodes of atrial fibrillation, which is a very common arrhythmia in elderly individuals, pre-
disposing elderly dangers for stroke;

There were episodes of premature ventricular contractions of PVCs; and episodes of QT tachy cardia.

xxxx

Q: So, what are these different types of arrhythmia?

A: Okay, Senator Enrile actually has three (3) different types of


arrhythmia, at least, based on our holter.

One is atrial fibrillation. I would say that it is the most common arrhythmia found in our geriatric patients. It
is a very important arrhythmia, because it is a risk factor for stroke, and Senator Enrile actually already has
one documentation of previous stroke based on an MRI study.

Second, he has premature ventricular contractions (PVCs). Again, very normal in patients who are in his age
group; and cralawlawlib rary

Third, is the atrial tachy cardia, which is another form of atrial fibrillation. He has these three types of irregular
heartbeat.

Q: These three types are all dangerous?


A: Yes, your Honor. These arrhythmias are dangerous under stressful
conditions. There is no way we can predict when these events occur
which can lead to life-threatening events.

x x x x.21 (Emphasis supplied)


Dr. Gonzales likewise classified Enrile as a patient "under pharmacy medication" owing to the fact that for
arrhythmia alone, he is taking the following medications: cilostazol; telmisartan; amlodipine; Coumadin;
norvasc; rosuvastin; pantoprazole; metformin; glycoside; centrum silver; nitramine and folic acid.

The records further disclosed that: (1) Enrile has "diabetes mellitus, dyslipidemia, essential hypertension,
extensive coronary artery calcification in the right coronary, left anterior descending and left circumflex,
multifocal ventricular premature beats, episodes of bradycardia, colonic diverticulosis, thoracic and lumbar
spondylosis L4-L5, alpha thalassemia and mucular degeneration, chronic lacunar ischemic zones, scattered
small luminal plaques of proximal middle segments of basilar artery, both horizontal and insular opercural
branches of middle cerebral arteries," and that he takes approximately 20 medicines a day; and (2) Enrile
needs to undergo "regular opthlamologic check-up, monitoring and treatment for his sight threatening
condition;" and that since 2008, he has been receiving monthly intravitreal injections to maintain and
preserve his vision.

Notably, when Dr. Gonzales (PGH Medical Director) was asked during the July 14, 2014 hearing on whether
Enrile - based on his observation - was capable of escaping, he replied that Enrile "has a problem with
ambulation;" and that "even in sitting down, he needs to be assisted."

Significantly, the use of humanitarian considerations in the grant of bail on the basis of health is not without
precedent.

In Dela Rama v. People,22 accused Francisco Dela Rama filed a motion before the People's Court asking for
permission to be confined and treated in a hospital while his bail petition was being considered. The People's
Court ordered that the Dela Rama be temporarily confined and treated at the Quezon Institute. It also
rejected Dela Rama's bail application.

During Dela Rama's stay in the hospital. Dr. Miguel Canizares of the Quezon Institute submitted a report to
the People's Court stating that Dela Rama suffered from a minimal, early, unstable type of pulmonary
tuberculosis, and chronic granular pharyngitis. He also recommended that Dela Rama continue his stay in
the sanatorium for purposes of proper management, treatment and regular periodic radiographic check-up
up of his illness.23 chanroble slaw

Dela Rama re-applied for bail on the grounds of poor health, but the People Court rejected his petition for
bail was again rejected. Instead, it ordered that Dela Rama be further treated at the Quezon Institute, and
that the Medical Director of the Quezon Institute submit monthly reports on the patient's condition.

Acting on Dela Rama's second petition for certiorari, this Court ruled that the People's Court had acted with
grave abuse of discretion by refusing to release Dela Rama on bail. It reasoned out as follows: ChanRobles Vi rtua lawlib rary

The fact that the denial by the People's Court of the petition for bail is accompanied by the above quoted order
of confinement of the petitioner in the Quezon Institute for treatment without the letter's consent, does not
in any way modify or qualify the denial so as to meet or accomplish the humanitarian purpose or reason
underlying the docfrine adopted by modern trend of courts decision which permit bail to
prisoners, irrespective of the nature and merits of the charge against them, if their continuous
confinement during the pendency of their case would be injurious to their health or endanger their
life.

xxxx

Considering the report of the Medical Director of the Quezon Institute to the effect that the petitioner "is
actually suffering from minimal, early, unstable type of pulmonary tuberculosis, and chronic, granular
pharyngitis," and that in said institute they "have seen many similar cases, later progressing into advance
stages when treatment and medicine are no longer of any avail;" taking into consideration that the petitioner's
previous petition for bail was denied by the People's Court on the ground that the petitioner was suffering
from quieseent and not active tuberculosis, and the implied purpose of the People's Court in sending the
petitioner to the Quezon Institute for clinical examination and diagnosis of the actual condition of his lungs,
was evidently to verify whether the petitioner is suffering from active tuberculosis, in order to act accordingly
in deciding his petition for bail; and considering further that the said People's Court has adopted and applied
the well-established doctrine cited in our above quoted resolution, in several cases, among them, the cases
against Pio Duran (case No. 3324) and Benigno Aquino (case No. 3527), in which the said defendants were
released on bail on the ground that they were ill and their continued confinement in New Bilibid
prison would be injurious to their health or endanger their life; it is evident and we consequently hold
that the People's Court acted with grave abuse of discretion in refusing to release the petitioner on bail.
(Emphasis ours).
Contrary to what the People insinuated in its motion, there has been no Court decision expressly
abandoning Dela Rama. That the amendments to Rule 114 did not incorporate the pronouncement in Dela
Rama (that bail may be granted if continued confinement in prison would be injurious to their health or
endanger their life) did not ipso facto mean that the Court was precluding an accused from citing
humanitarian considerations as a ground for bail.

In United States v. Jones,24 the United States Circuit Court held that [w]here an application for bail showed
that the prisoner's health was bad, his complaint pulmonary, and that, in the opinion of his physician,
confinement during the summer might so far increase his disorder as to render it ultimately dangerous, x x
x [t]he humanity of our laws, not less than the feelings of the court, favor the liberation of a prisoner upon
bail under such circumstances. According to the court, it is not necessary that the danger which may arise
from his confinement should be either immediate or certain. If, in the opinion of a skillful physician, the
nature of his disorder is such that the confinement must be injurious and may be fatal, the prisoner "ought
to be bailed."

I also point out that per the testimony of Dr. Servillano, the facilities of the PNP General Hospital (where
Enrile had been detained) were inadequate to address emergency situations, such as when Enrile's condition
suddenly worsens. Thus, Enrile's continued confinement at this hospital endangered his life.

While it could be argued that Enrile could have been transferred to another, better-equipped, hospital, this
move does not guarantee that his health would improve. The dangers associated with a prolonged hospital
stay were revealed in court by the government's own doctor, Dr. Gonzales. To directly quote from the
records:ChanRoble sVirtualawl ibra ry

AJ QUIROZ:

Q: Being confined in a hospital is also stressful, right?

DIRECTOR GONZALES:

A: Yes, your Honor, you can also acquire pneumonia, hospital intensive
pneumonia, if you get hospital acquired pneumonia, these are
bacteria or micro organisms that can hit you, such that we don't
usually confine a patient.
If it is not really life threatening, such that it is better to have a
community acquired pneumonia, because you don't have to use
sophisticated antibiotics. But if you have a prolonged hospital stay,
definitely, you would get the bacteria in there, which will require a lot
of degenerational antibiotics.

x x x x25 cralaw redc ralawred

I therefore reiterate, to the point of repetition, that Enrile is already 91- years old, and his immune system
is expectedly weak. His body might not adjust anymore to another transfer to a different medical facility.

To be sure, Enrile's medical condition was not totally unknown to the prosecution. To recall, Enrile
filed his Motion for Detention at the PNP General Hospital and his Motion to Fix Bail before the
Sandiganbayan on July 4, 2014 and July 7, 2014, respectively. In the former motion, Enrile claimed that
that "his advanced age and frail medical condition" merited hospital arrest in the Philippine National Police
General Hospital under such conditions that may be prescribed by the Sandiganbayan. He additionally
prayed that in the event of a medical emergency that cannot be addressed by the Philippine National Police
General Hospital, he may be allowed to access an outside medical facility. In his motion to fix bail, Enrile
argued that his age and voluntary surrender were mitigating and extenuating circumstances. The Office of
the Ombudsman filed its Opposition to the Motion to Fix Bail on July 9, 2014; the prosecution also submitted
its Opposition to the Motion for Detention at the PNP General Hospital. To be sure, the prosecution had not
been kept in the dark as regards the medical condition of Enrile.

I also submit, on the matter of evasion, that we can take judicial notice that Enrile had been criminally
charged in the past and not once did he attempt to evade the jurisdiction of the courts; he submitted
himself to judicial jurisdiction and met the cases against him head-on.26 chanroble slaw

The People's insinuation that Enrile has shown "propensity to take exception to the laws and rules that are
otherwise applicable to all, perhaps out of a false sense of superiority or entitlement" due to his refusal to
enter a plea before the Sandiganbayan; his act of questioning the insufficiency of the details of his
indictment; a motion to fix bail that he filed instead of a petition for bail; and his act of seeking detention in
a hospital instead of in a regular facility, were uncalled for. Enrile was well within his right to avail of those
remedies or actions since they were not prohibited by the Rules.

We are well aware that Enrile, after posting bail, immediately reported for work in the Senate. This
circumstance, however, does not ipso facto mean that he is not suffering from the ailments we enumerated
above (as found and testified to by the physicians).

To be fair, the majority did not hold that Enrile was so weak and ill that he was incapacitated and unable to
perform his duties as Senator; it merely stated that he should be admitted to bail due to his old age and ill
health.

Surely, one may be ill, and yet still opt to report for work. We note that Enrile told the media that he
reported to work "to earn my pay," adding that, "I will perform my duty for as long as I have an ounce of
energy."27 If Enrile chose to continue reporting for work despite his ailments, that is his prerogative.

Misplaced reliance on the equal protection clause

Contrary to the Ombudsman's claim, the grant of provisional liberty to Enrile did not violate the equal
protection clause under the Constitution.

The guarantee of equal protection of the law is a branch of the right to due process embodied in Article III,
Section 1 of the Constitution. It is rooted in the same concept of fairness that underlies the due process
clause. In its simplest sense, it requires equal treatment, i.e., the absence of discrimination, for all those
under the same situation.28 chanroble slaw

In Biraogo v. Philippine Truth Commission of 2010,29 the Court explained this concept as follows: ChanRobles Vi rtua lawlib rary

x x x [E]qual protection simply requires that all persons or things similarly situated should be treated alike,
both as to rights conferred and responsibilities imposed. It requires public bodies and institutions to treat
similarly situated individuals in a similar manner. The purpose of the equal protection clause is to secure every
person within a state's jurisdiction against intentional and arbitrary discrimination, whether occasioned by the
express terms of a statue or by its improper execution through the state's duly constituted authorities. In
other words, the concept of equal justice under the law requires the state to govern impartially, and it may
not draw distinctions between individuals solely on differences that are irrelevant to a legitimate governmental
objective.
Hence, any claim of violation of the equal protection clause must convincingly show that there exists a
classification that is blatantly arbitrary or capricious, and that there is no rational basis for the differing
treatment. The present motion for reconsideration had not shown that there were other
nonagenarian charged with a capital offense who are currently behind bars.

We note in this regard that Resolution No. 24-4-10 (Re: Amending and Repealing Certain Rules and Sections
of the Rules on Parole and Amended Guidelines for Recommending Executive Clemency of the 2006 Revised
Manual of the Board of Pardons and Parole) directs the Board to recommend to the President the grant of
executive clemency of, among other, inmates who are seventy (70) years old and above whose
continued imprisonment is inimical to their health as recommended by a physician of the Bureau of
Corrections Hospital and certified under oath by a physician designated by the Department of Health.
If convicted persons (i.e., persons whose guilt have been proven with moral certainty) are allowed to be
released on account of their old age and health, then there is no reason why a mere accused could not be
released on bail based on the same grounds.

The Joint Resolution of the Ombudsman did nor show any direct link of Enrile to the so-called PDAF scam

As the ponente of another Enrile case, I also made a painstaking cross-reference to the 144-page Joint
Resolution of the Office of the Ombudsman dated March 28, 2014 (which became the basis of Enrile's
indictment before the Sandiganbayan), but did not see anything there to show that Enrile received kickbacks
and/or commissions from Napoles or her representatives.

This Joint Resolution contained an enumeration of the amounts of Special Allotment Release Order (SARO)
released by the DBM; the projects and activities; the intended beneficiaries/LGUs; the total
projects/activities cost; the implementing agency; the project partners/NGOs; the disbursement vouchers
and their respective amounts and dates; the check numbers; the paying agencies/claimant or payee; the
signatories of the vouchers; and the signatories of the Memorandum of Agreement (MOA).

Notably, Enrile's signature did not appear in any of the documents listed by the prosecution. The sworn
statements of the so-called whistleblowers, namely Benhur Luy, Marina Sula, Merlina Suas, as well as Ruby
Tuason's Counter-Affidavit, also did not state that Enrile personally received money, rebates, kickbacks or
commissions. In her affidavit, Tuason also merely presumed that whatever Reyes "was doing was with
Senator Enrile's blessing" since there were occasions when "Senator Enrile would join us for a cup of coffee
when he would pick her up." Luy's records also showed that that the commissions, rebates, or kickbacks
amounting to at least P172,834,500.00 (the amount alleged in the plunder charge) were received by either
Reyes or Tuason.

My findings were verified by recent news reports stating that the prosecutors admitted that they had no
evidence indicating that Enrile personally received kickbacks from the multi-billion-peso pork barrel scam
during the oral summation for the petition to post bail of alleged pork scam mastermind Janet Lim-Napoles
before the Sandiganbayan Third Division. These reports also stated that prosecutor Edwin Gomez admitted
that the endorsement letters identifying the Napoles-linked foundations as the beneficiaries of Enrile's PDAF
were not signed by Enrile (Gomez said six of the endorsement letters were signed by Reyes while the rest
were signed by Enrile's other chief of staff, Atty. Jose Antonio Evangelista).30 chanroble slaw
I make it clear that I am not in any way prejudging the case against Enrile before the Sandiganbayan. I am
simply pointing out that based on the records available to me as the ponente of a related Enrile case, there
was no showing that Enrile received kickbacks or commissions relating to his PDAF. Whether Enrile
conspired with his co-accused is a matter that needs to be threshed out by the Anti-Graft Court.

WHEREFORE, premises considered, I vote to DENY the present motion for reconsideration.

DISSENTING OPINION

LEONEN, J.:

After his release solely on the basis of his frail health, Senator Juan Ponce Enrile immediately reported for
work at the Senate.1 chanroble slaw

Until the end of his term on June 30, 2016, he actively and publicly participated in the affairs of the
Senate.2 The majority maintains that his release on humanitarian grounds due to his frail health still
stands.3 This is a contradiction I cannot accept.

With due respect to my esteemed colleagues, I maintain my dissent.

The reversal of the Sandiganbayan Decision on its actions on the Motion to Fix Bail filed by petitioner is an
unacceptable deviation from clear constitutional norms and procedural precepts. Carving this extraordinary
exception is dangerous. The ponencia opens the opportunity of unbridled discretion of every trial court. It
erases canonical and textually based interpretations of our Constitution. It undermines the judicial system
and weakens our resolve to ensure that we guarantee the rule of law.

Fundamental to resolving this Petition for Certiorari is Article III, Section 13 of the Constitution:ChanRobles Vi rtua lawlib rary

ARTICLE III
BILL OF RIGHTS

. . . .

SECTION 13. All persons, except those charged with offenses punishable by reclusion perpetua when evidence
of guilt is strong, shall, before conviction, be bailable by sufficient sureties, or be released on recognizance as
may be provided by law. The right to bail shall not be impaired even when the privilege of the writ of habeas
corpus is suspended. Excessive bail shall not be required.
Bail is a constitutional right of the accused. It should be correctly read in relation to his fundamental right to
be presumed innocent.4 However, contrary to the position of the ponencia and of Associate Justice Arturo
Brion in his Separate Opinion, availing of this right is also constrained by the same Constitution.

When the offense charged is not punishable by reclusion perpetua, bail is automatic. The only discretion of
the court is to determine the amount and kind of bail to be posted.5 When the crime is not punishable
by reclusion perpetua, there is no need for the court to determine whether the evidence of guilt is strong.

Equally fundamental, from the clear and unambiguous text of the provision of the Constitution, the Rules of
Court, and our jurisprudence, is that when the offense charged is punishable by reclusion perpetua, bail
shall be granted only after a hearing occasioned by a petition for bail. The phrase "except those charged
with offenses punishable by reclusion perpetua when evidence of guilt is strong" found in the Constitution is
a sovereign determination that qualifies the presumption of innocence and the right to bail of persons
detained under custody of law. There is no room for equity when the provisions of the law are clear.

The Sandiganbayan, in that hearing, provides the prosecution with the opportunity to overcome its burden
of proving that the evidence of guilt is strong.
The opportunity granted to the prosecution to prove that evidence of guilt is strong so as to defeat the
prayer of an accused to be released on bail is a mandatory constitutional process.6 It is part of the
prosecution's right to due process. It is an elementary requirement of fairness required by law and equity. In
criminal prosecutions, it is not only the accused that is involved. The state represents the People. Thus,
violating the prosecution's right to due process of law trivializes the interest of the People in criminal actions.

Thus, when the offense charged is punishable by reclusion perpetua, bail is regarded as a "matter of
discretion."7 chanrob leslaw

When bail is a matter of discretion,8 an application for bail must be filed and a bail hearing must be
mandatorily conducted to determine if the evidence of guilt is strong.9 Absent this, bail can neither be
granted nor denied.

Accused was charged with plunder. Under Republic Act No. 7080,10 plunder is punishable by reclusion
perpetua to death. Accused, through counsel, submitted a Motion to Fix Bail and thereby precluded any
determination on whether the evidence against him was strong. Accused, through counsel, disregarded the
fundamental requirements of the Constitution, the Rules of Court that this Court promulgated, and the
unflinching jurisprudence of this Court.

The strength or weakness of the evidence has not been conclusively determined by the Sandiganbayan. The
Sandiganbayan could not do so because accused's Motion to Fix Bail did not provide the prosecution the
opportunity to present proof of whether the evidence of guilt is strong. Rather, the Motion to Fix Bail was
premised on the following grounds:

chanRoble svirtual Lawlib ra ry First, the mitigating circumstances of accused's advanced age and his alleged voluntary
surrender.11 Second, his allegation that his age and physical condition ensured that he was not a flight
risk.12 chanrobles law

To repeat for purposes of emphasis, the prosecution did not have the opportunity to present evidence of
whether the evidence of guilt was strong. This opportunity was truncated by accused himself when his
counsel filed a Motion to Fix Bail, and not an application or a petition for bail as required by existing rules.

Justice Brion reveals that he has weighed the evidence still being presented before the Sandiganbayan.13 In
his Separate Opinion, he points to his evaluation of the annexes attached to another Petition filed before this
Court, which had nothing to do with the weight of the evidence or with whether accused is entitled to bail.

Enrile v. People,14 docketed as G.R. No. 213455, has nothing to do with this case. It cannot even be
consolidated with this case docketed as G.R. No. 213847. That case raised the issue of whether there were
sufficient allegations in the Information to sustain an arraignment.15 It did not occasion a hearing to
determine whether the evidence of guilt was strong. To sustain the relief of petitioner, there was no need to
examine the admissibility and weight of the evidence.

Documentary annexes attached to the pleadings in G.R. No. 213455 do not appear to have been evidence
presented, admitted, and weighed by the Sandiganbayan in an application for bail. Neither, then, should a
news report16hearsay in characterbe accepted by any Justice of the Supreme Court as proof without the
news report having undergone the fair process of presentation and admission during trial or in a proper
hearing before the Sandiganbayan. Not only is it improper; it is unfair to the prosecution, and it is another
extraordinary deviation from our Rules of Court.

II

I am also unable to accept the ponencia's ruling that: ChanRobles Virtualawl ibra ry

Clearly, the People were not denied the reasonable opportunity to challenge or refute the allegations about
his advanced age and the instability of his health even if the allegations had not been directly made in
connection with his Motion to Fix Bail.17(Emphasis in the original)
With all due respect, this conclusion is based on an inaccurate appreciation of what happened before the
Sandiganbayan and the content of the present Petition for Certiorari. To recall: ChanRob les Vi rtualawl ib rary

On June 5, 2014, Senator Juan Ponce Enrile (Enrile) was charged with the crime of plunder punishable under
Republic Act No. 7080. Section 2 of this law provides: ChanRobles Vi rt ualawlib ra ry

SEC. 2. Definition of the Crime of Plunder, Penalties. - Any public officer who, by himself or in connivance with
members of his family, relatives by affinity or consanguinity, business associates, subordinates or other
persons, amasses accumulates or acquires ill-gotten wealth through a combination or series of overt or
criminal acts as described in Section 1 (d) hereof in the aggregate amount or total value of at least Fifty million
pesos (P50,000,000.00) shall be guilty of the crime of plunder and shall be punished by reclusion perpetua to
death[.]
On June 10, 2014, Enrile filed an Omnibus Motion before the Sandiganbayan, praying that he be allowed to
post bail if the Sandiganbayan should find probable cause against him. On July 3, 2014, the Sandiganbayan
denied the Omnibus Motion on the ground of prematurity since no warrant of arrest had been issued at that
time. In the same Resolution, the Sandiganbayan ordered Enrile's arrest.

On the same day the warrant of arrest was issued and served, Enrile proceeded to the Criminal Investigation
and Detection Group of the Philippine National Police in Camp Crame, Quezon City.

On July 7, 2014, Enrile filed a Motion to Fix Bail, arguing that his alleged age and voluntary surrender were
mitigating and extenuating circumstances that would lower the imposable penalty to reclusion temporal. He
also argued that his alleged age and physical condition indicated that he was not a flight risk. His prayer
states:ChanRoblesVirt ualawli bra ry

WHEREFORE, accused Enrile prays that the Honorable Court allow Enrile to post bail, and forthwith set the
amount of bail pending determination that (a) evidence of guilt is strong; (b) uncontroverted mitigating
circumstances of at least 70 years old and voluntary surrender will not lower the imposable penalty to reclusion
temporal; and (c) Enrile is a flight risk [sic].
The Office of the Ombudsman filed its Opposition to the Motion to Fix Bail dated July 9, 2014. Enrile filed a
Reply dated July 11, 2014.

Pending the resolution of his Motion to Fix Bail, Enrile filed a Motion for Detention at the PNP General Hospital
dated July 4, 2014, arguing that "his advanced age and frail medical condition" merit hospital arrest in the
Philippine National Police General Hospital under such conditions that may be prescribed by the
Sandiganbayan. He also prayed that in the event of a medical emergency that cannot be addressed by the
Philippine National Police General Hospital, he may be allowed to access an outside medical facility. His prayer
states:ChanRoblesVirt ualawli bra ry

WHEREFORE, accused Enrile prays that the Honorable Court temporarily place him under hospital confinement
at the PNP General Hospital at Camp Crame, Quezon City, with continuing authority given to the hospital head
or administrator to exercise his professional medical judgment or discretion to allow Enrile's immediate access
of, or temporary visit to, another medical facility outside of Camp Crame, in case of emergency or necessity,
secured with appropriate guards, but after completion of the appropriate medical treatment or procedure, he
be returned forthwith to the PNP General Hospital.
After the prosecution's submission of its Opposition to the Motion for Detention at the PNP General Hospital,
the Sandiganbayan held a hearing on July 9, 2014 to resolve this Motion.

On July 9, 2014, the Sandiganbayan issued an Order allowing Enrile to remain at the Philippine National Police
General Hospital for medical examination until further orders of the court.18 chanro blesvi rt uallawl ibra ry

What is clear is that there were two (2) Motions separately filed, separately heard, and were the subjects of
separate orders issued by the Sandiganbayan.

The Motion to Fix Bail was filed on July 7, 2014.19 The Ombudsman filed its Opposition to the Motion to Fix
Bail on July 9, 2014.20 Accused filed his Reply on July 11, 2014.21 The Sandiganbayan Resolution denying
accused's Motion to Fix Bail for being premature was issued on July 14, 2014.22 chanrobleslaw

It is this Resolution dated July 14, 2014only this Resolution, together with the denial of the Motion for
Reconsideration of this Resolution, and no otherthat is the subject of the present Petition for Certiorari.

The other motion was a Motion for Detention at the Philippine National Police General Hospital dated July 4,
2014. It was in this Motion that accused argued "his advanced age and frail medical condition."23 The
prosecution submitted an Opposition to this Motion on July 7, 2014.24 This Motion was orally heard on July
9, 2014.25 There was a separate Order allowing accused to remain at the Philippine National Police General
cralawred

Hospital. This Order was dated July 9, 2014.26 chanrobles law

The Order dated July 9, 2014, which allowed accused's detention in a hospital, is not the subject of this
Petition for Certiorari. Apart from his hospital detention not being the subject of this Petition, accused did
not question the conditions of his detention. The prosecution had conclusive basis to rely on accused's
inaction. While evidence of his advanced age and frail medical condition was presented, accused was
satisfied with hospital arrest and not release.

The basis for the Motion to Fix Bail was not the frail condition of accused. Rather, it was the Motion's
argument that there were two (2) mitigating circumstances: advanced age and voluntary surrender.

Thus, the Sandiganbayan Resolution, the subject of this Petition for Certiorari, states: ChanRobles Vi rtualaw lib rary

[I]t is only after the prosecution shall have presented its evidence and the Court shall have made a
determination that the evidence of guilt is not strong against accused Enrile can he demand bail as a matter
of right. Then and only then will the Court be duty-bound to fix the amount of his bail.

To be sure, no such determination has been made by the Court. In fact, accused Enrile has not filed an
application for bail. Necessarily, no bail hearing can even commence. It is thus exceedingly premature for
accused Enrile to ask the Court to fix his bail.27chan rob lesvi rtual lawlib rary

Accused, through counsel, filed a Motion for Reconsideration28 based on the same argument, but this was
similarly denied.29 Accused only raised his frail health in relation to the conclusion that he was not a flight
risk.30 chanrobles law

Accused did not justify, on the basis of his frail health, his allowance to bail without a hearing on whether
the evidence of guilt was strong. As extensively discussed in the Dissenting Opinion filed with the first
resolution of this case, the majority in this Court granted bail on a ground other than that which was argued
or prayed for in this Petition.

Furthermore, the certification relied upon by the majority was presented not for having accused released on
bail. The hearing relating to this certification was to determine whether accused's detention in a hospital
should continue.31 It was not for determining whether there were serious reasons for his urgent release.

Dr. Jose C. Gonzales' certification was in a Manifestation and Compliance dated August 28, 2014.32This
certification was submitted as an annex to a Manifestation33 before this Court regarding the remoteness of
the possibility of flight of accused. This certification was not submitted to release accused on bail due to his
ailments.

Finally, we imposed an arbitrary amount of P1,000,000.00 as bail for accused.34 The prosecution was not
given the opportunity to comment on the amount of bail. The sufficiency of this amount, in relation to the
net worth of accused or his sources of income, has not been presented in evidence. Whether it suffices to
guarantee his appearance in further court proceedings, therefore, is the product of the collective conjecture
of this Court. We are bereft with factual basis. Our rules are designed to have the Sandiganbayan or a trial
court determine these facts. It is not within our competence to receive this type of evidence. Certainly, it is
not within our jurisdiction to go beyond the provisions of the Constitution.

In my view, these observations show a quintessential disrespect for the inherent due process rights of the
prosecution. We have sprung a surprise on the prosecution, and have given an unexpected gift to accused.

This is not fairness as I understand it.

III
Justice Brion further suggests that the prosecution was unable to show any other nonagenarian who is
incarcerated and is in the same position as petitioner in this case.35 chanrobles law

This certainly is not the point. Again, the point is whether there is basis in our Constitution or in our Rules of
Court to grant exceptional treatment to petitioner. I maintain that there is none.

Even if there were, there are still those whose conditions are worse off than that of petitioner.

Those of us who have prosecuted or defended an accused at various levels in our court system know the
conditions of detention facilities in this country. Many of my colleagues have had the privilege of serving as
judges of both the first- and second-level trial courts. They have more intimate knowledge of the conditions
of our detention because they have supervised detention facilities as executive judges of their various
stations.

To say that detention facilities are overcrowded is an understatement. In many places, detention prisoners
have nowhere to get sound sleep. These facilities are populated by those who are under detention for
allegedly selling less than one (1) gram of shabu, for allegedly stealing a cell phone, for allegedly
committing estafa against their employers, and for the countless allegations of crimes committed only by
those who do not have as many opportunities as petitioner in this case. They do not have the resources to
hire their own medical specialists. They do not have the ability to pay for focused legal assistance. Thus,
they suffer in silence. They await the ordinary course of justice required by our law and our Rules of Court.
They do not have the resources to craft exceptions to what is contained in our law.

Indeed, petitioner is a nonagenarian who suffers from some medical ailments. Yet, we should not erase the
privileges he was given.

Petitioner is accused of plunder, which requires a charge that he has defrauded the people of at least
P75,000,000.00 or more and has taken advantage of his public office.36 He was not accused of stealing
bread because he was driven by the hopelessness of fearing that his children would go hungry.

Petitioner did not share the crowded spaces of the impoverished hordes in detention facilities. He was given
the privilege of being incarcerated in special quarters, and then later, in a government hospital. There was a
constant stream of clothes and food that came to him through his friends, family, and staff.

Upon his release, petitioner would have mansions to go home to, with facilities full of comfort. He would not
need to live in unnumbered shanties that could barely survive the vagaries of our weather systems.

Narrowing our vision and making his privileges invisible will result in unfounded judicial exceptionalism.
Judicial exceptionalism, consciously or unconsciously, favors the rich and powerful. Injustice entrenches
inequality. Inequality assures poverty. Poverty ensures crimes that provide discomfort to the rich. But
crimes are expressions of hopelessness by many, no matter how illegitimate.

There may be no more nonagenarians who suffer in special confinement in government hospitals. Certainly,
there are many more languishing in our ordinary detention centers.

All these should bother our sense of fairness.

IV

A lot of media coverage was given to my statements in Part IV of my Dissenting Opinion of the first
resolution of this case. Many have concluded that my point was to imply that my colleagues who voted for
the majority did not have the opportunity to read and reflect on the final contents of the Decision. Memes
were generated to cast the result of this case as a battle between the Justices of this Court.

That was neither my express nor implied intention. No opinion of this Court should be interpreted in that
manner. Every member of this Court knew the consequences of his or her position.

The purpose of that narrative was to explain why another Associate Justice chose not to write her separate
dissenting opinion37 and to put in context the "apparent delay in the announcements regarding the vote and
the date of promulgation"38 of the judgment.

A dissenting opinion, in my view, should be read to express the principled view of its author regarding the
facts, issues, legal principles, and interpretative methodologies that should be applied in a case. It is never
the forum to cast doubt on the character of esteemed colleagues.

Dissents, by their very nature, cause a degree of discomfort to those whose views are different. This
discomfort is part of a collegiate court and a vibrant judiciary. It should be appreciated by the public as
reflecting competing points of view on matters of principle, not as a staged and puerile clash of gladiators.
The drama lies on the points raised, not on the personalities that are mediums for these standpoints.

Effective dissents strive to be articulate, but not caustic. An effective dissent is an effort to call attention to
details and principles that may have been overlooked by the majority. It is never a means to undermine the
competence of any member of this Court. It is the result of a constitutional duty to lay down what each of us
views as a more convincing standpoint as well as a more reasoned and just conclusion.

Thus, I maintain my dissent. Justice should always be in accordance with law. Accommodations given to
select accused on very shaky legal foundations weaken the public's faith on our judicial institutions.

I urge that we reconsider.

ACCORDINGLY, I vote to GRANT the Motion for Reconsideration.

G.R. Nos. 212140-41 January 21, 2015

SENATOR JINGGOY EJERCITO ESTRADA, Petitioner,


vs.
OFFICE OF THE OMBUDSMAN, FIELD INVESTIGATION OFFICE, Office of the Ombudsman,
NATIONAL BUREAU OF INVESTIGATION and ATTY. LEVITO D. BALIGOD, Respondents.

DECISION

CARPIO, J.:

It is a fundamental principle that the accused in a preliminary investigation has no right to cross-
examine the witnesses which the complainant may present. Section 3, Rule 112 of the Rules of
Court expressly provides that the respondent shall only have the right to submit a counter-affidavit,
to examine all other evidence submitted by the complainant and, where the fiscal sets a hearing to
propound clarificatory questions to the parties or their witnesses, to be afforded an opportunity to be
present but without the right to examine or crossexamine.

- Paderanga v. Drilon1

This case is a Petition for Certiorari2 with prayer for (1) the issuance of a temporary restraining order
and/or Writ of Preliminary Injunction enjoining respondents Office of the Ombudsman (Ombudsman),
Field Investigation Office (FIO) of the Ombudsman, National Bureau of Investigation (NBI), and Atty.
Levito D. Baligod (Atty. Baligod) (collectively, respondents), from conducting further proceedings in
OMB-CC-13-03013 and OMB-C-C-13-0397 until the present Petition has been resolved with finality;
and (2) this Courts declaration that petitioner Senator Jinggoy Ejercito Estrada (Sen. Estrada)was
denied due process of law, and that the Order of the Ombudsman dated 27 March 2014 and the
proceedings in OMB-C-C-13-03013 and OMB-C-C-13-0397 subsequent to and affected by the
issuance of the challenged 27 March 2014 Order are void.
OMB-C-C-13-0313,3 entitled National Bureau of Investigation and Atty. Levito D. Baligod v. Jose
"Jinggoy" P. Ejercito Estrada, et al.,refers to the complaint for Plunder as defined under Republic Act
(RA) No. 7080, while OMB-C-C-13-0397,4 entitled Field Investigation Office, Office of the
Ombudsman v. Jose "Jinggoy" P. Ejercito-Estrada, et al., refers to the complaint for Plunder as
defined underRA No. 7080 and for violation of Section 3(e) of RA No. 3019 (Anti-Graft and Corrupt
Practices Act).

The Facts

On 25 November 2013, the Ombudsman served upon Sen. Estrada a copy of the complaint in OMB-
C-C-13-0313, filed by the NBI and Atty. Baligod, which prayed, among others, that criminal
proceedings for Plunder as defined in RA No. 7080 be conducted against Sen. Estrada. Sen.
Estrada filed his counter-affidavit inOMB-C-C-13-0313 on 9 January 2014.

On 3 December 2013, the Ombudsman served upon Sen. Estrada a copy of the complaint in OMB-
C-C-13-0397, filed by the FIO of the Ombudsman, which prayed, among others, that criminal
proceedings for Plunder, as defined in RA No. 7080, and for violation of Section 3(e) of RA No.
3019, be conducted against Sen. Estrada. Sen. Estrada filed his counter affidavit in OMB-C-C-13-
0397 on 16 January 2014.

Eighteen of Sen. Estradas co-respondents in the two complaints filed their counter-affidavits
between 9 December 2013 and 14 March 2014.5

On 20 March 2014, Sen. Estrada filed his Request to be Furnished with Copies of Counter-Affidavits
of the Other Respondents, Affidavits of New Witnesses and Other Filings (Request) in OMB-C-C-13-
0313. In his Request, Sen. Estrada asked for copies of the following documents:

(a) Affidavit of [co-respondent] Ruby Tuason (Tuason);

(b) Affidavit of [co-respondent] Dennis L. Cunanan (Cunanan);

(c) Counter-Affidavit of [co-respondent] Gondelina G. Amata (Amata);

(d) Counter-Affidavit of [co-respondent] Mario L. Relampagos (Relampagos);

(e) Consolidated Reply of complainant NBI, if one had been filed; and

(f) Affidavits/Counter-Affidavits/Pleadings/Filings filed by all the other respondents and/or


additional witnesses for the Complainants.6

Sen. Estradas request was made "[p]ursuant to the right of a respondent to examine the evidence
submitted by the complainant which he may not have been furnished (Section 3[b], Rule 112 of the
Rules of Court) and to have access to the evidence on record (Section 4[c], Rule II of the Rules of
Procedure of the Office of the Ombudsman)."7

On 27 March 2014, the Ombudsman issued the assailed Order in OMB-C-C-13-0313. The pertinent
portions of the assailed Order read:

This Office finds however finds [sic] that the foregoing provisions [pertaining to Section 3[b], Rule
112 of the Rules of Court and Section 4[c], Rule II of the Rules of Procedure of the Office of the
Ombudsman] do not entitle respondent [Sen. Estrada]to be furnished all the filings of the
respondents.

Rule 112 (3) (a) & (c) of the Rules of Court provides [sic]:

(a) The complaintshall state the address of the respondent and shall be accompanied by the
affidavits of the complainant and his witnesses, as well as other supporting documents to
establish probable cause

xxx xxx xxx

(c) Within ten (10) days from receipt of the subpoena with the complaint and supporting
affidavits and documents, the respondent shall submit his counter affidavit and that of his
witnesses and other supporting documents relied upon for his defense. The counter
affidavits shall be subscribed and sworn to and certified as provided in paragraph (a) of this
section, with copies thereof furnished by him to the complainant.

Further to quote the rule in furnishing copies of affidavits to parties under the Rules of Procedure of
the Office of the Ombudsman [Section 4 of Rule II of Administrative Order No. 07 issued on April 10,
1990]:

a) If the complaint is not under oath or is based only on official reports, the investigating
officer shall require the complainant or supporting witnesses to execute affidavits to
substantiate the complaints.

b) After such affidavits have been secured, the investigating officer shall issue an order,
attaching thereto a copy of the affidavits and other supporting documents, directing the
respondents to submit, within ten (10) days from receipt thereof, his counter-affidavits and
controverting evidence with proof of service thereof on the complainant. The complainant
may file reply affidavits within ten (10) days after service of the counter-affidavits.

It can be gleaned from these aforecited provisions that this Office is required to furnish [Sen.
Estrada] a copy of the Complaint and its supporting affidavits and documents; and this Office
complied with this requirement when it furnished [Sen. Estrada] with the foregoing documents
attached to the Orders to File Counter-Affidavit dated 19 November 2013 and 25 November 2013.

It is to be noted that there is noprovision under this Offices Rules of Procedure which entitles
respondent to be furnished all the filings by the other parties, e.g. the respondents. Ruby Tuason,
Dennis Cunanan, Gondelina G. Amata and Mario L. Relampagos themselves are all respondents in
these cases. Under the Rules of Court as well as the Rules of Procedure of the Office of the
Ombudsman, the respondents are only required to furnish their counter-affidavits and controverting
evidence to the complainant, and not to the other respondents.

To reiterate, the rights of respondent [Sen.] Estrada in the conduct of the preliminary investigation
depend on the rights granted to him by law and these cannot be based on whatever rights he
believes [that] he is entitled to or those that may be derived from the phrase "due process of law."
Thus, this Office cannot grant his motion to be furnished with copies of all the filings by the other
parties. Nevertheless, he should be furnished a copy of the Reply of complainant NBI as he is
entitled thereto under the rules; however, as of this date, no Reply has been filed by complainant
NBI.
WHEREFORE, respondent [Sen.] Estradas Request to be Furnished with Copies of Counter-
Affidavits of the Other Respondents, Affidavits of New Witnesses and Other Filingsis DENIED. He is
nevertheless entitled to be furnished a copy of the Reply if complainant opts to file such
pleading.8 (Emphases in the original)

On 28 March 2014, the Ombudsman issued in OMB-C-C-13-0313 and OMB-C-C-13-0397 a Joint


Resolution9which found probable cause to indict Sen. Estrada and his co-respondents with one
count of plunder and 11 counts of violation of Section 3(e) of RA No. 3019. Sen. Estrada filed a
Motion for Reconsideration (of the Joint Resolution dated 28 March 2014) dated 7 April 2014. Sen.
Estrada prayed for the issuance of a new resolution dismissing the charges against him. Without
filing a Motion for Reconsideration of the Ombudsmans 27 March 2014 Order denying his Request,
Sen. Estrada filed the present Petition for Certiorari under Rule 65 and sought to annul and set aside
the 27 March 2014 Order.

THE ARGUMENTS

Sen. Estrada raised the following grounds in his Petition:

THE OFFICE OF THE OMBUDSMAN, IN ISSUING THE CHALLENGED ORDER DATED 27


MARCH 2014, ACTED WITHOUT OR IN EXCESS OF ITS JURISDICTION OR WITH GRAVE
ABUSE OF DISCRETION AMOUNTING TO LACK OR EXCESS OF JURISDICTION AND
VIOLATED SEN. ESTRADA'S CONSTITUTIONAL RIGHT TO DUE PROCESS OF LAW.10 Sen.
Estrada also claimed that under the circumstances, he has "no appeal or any other plain, speedy,
and adequate remedy in the ordinary course of law, except through this Petition."11 Sen. Estrada
applied for the issuance of a temporary restraining order and/or writ of preliminary injunction to
restrain public respondents from conducting further proceedings in OMB-C-C-13-0313 and OMB-C-
C-13-0397. Finally, Sen. Estrada asked for a judgment declaring that (a) he has been denied due
process of law, and as a consequence thereof, (b) the Order dated 27 March 2014, as well as the
proceedings in OMB-C-C-13-0313 and OMB-C-C-13-0397 subsequent to and affected bythe
issuance of the 27 March 2014 Order, are void.12

On the same date, 7 May 2014, the Ombudsman issued in OMBC-C-13-0313 and OMB-C-C-13-
0397 a Joint Order furnishing Sen. Estrada with the counter-affidavits of Tuason, Cunanan, Amata,
Relampagos, Francisco Figura, Gregoria Buenaventura, and Alexis Sevidal, and directing him to
comment thereon within a non-extendible period of five days fromreceipt of the order.

On 12 May 2014, Sen. Estrada filed before the Ombudsman a motion to suspend proceedings in
OMB-C-C-13-0313 and OMB-C-C-13-0397 because the denial of his Request to be furnished copies
of counter-affidavits of his co-respondents deprived him of his right to procedural due process, and
he has filed the present Petition before thisCourt. The Ombudsman denied Sen. Estradas motion to
suspend in an Order dated 15 May 2014. Sen. Estrada filed a motion for reconsideration of the
Order dated 15 May 2014 but his motion was denied in an Order dated 3 June 2014.

As of 2 June 2014,the date of filing of the Ombudsmans Comment to the present Petition, Sen.
Estrada had not filed a comment on the counter-affidavits furnished to him. On 4 June 2014, the
Ombudsman issued a Joint Order in OMB-C-C-13-0313 and OMB-C-C-13-0397 denying, among
other motions filed by the other respondents, Sen. Estradas motion for reconsideration dated 7 April
2014. The pertinent portion of the 4 June 2014 Joint Order stated:

While it is true that Senator Estradas request for copies of Tuason, Cunanan, Amata, Relampagos,
Figura, Buenaventura and Sevidals affidavits was denied by Order dated 27 March 2014 and before
the promulgation of the assailed Joint Resolution, this Office thereafter reevaluated the request and
granted it byOrder dated 7 May 2014 granting his request. Copies of the requested counter-affidavits
were appended to the copy of the Order dated 7 May 2014 transmitted to Senator Estrada through
counsel.

This Office, in fact, held in abeyance the disposition of the motions for reconsideration in this
proceeding in light of its grant to Senator Estrada a period of five days from receipt of the 7 May
2014 Order to formally respond to the above-named co-respondents claims.

In view of the foregoing, this Office fails to see how Senator Estrada was deprived of his right to
procedural due process.13 (Emphasis supplied)

On 2 June 2014, the Ombudsman, the FIO, and the NBI (collectively, public respondents), through
the Officeof the Solicitor General, filed their Comment to the present Petition. The public
respondents argued that:

I. PETITIONER [SEN. ESTRADA] WAS NOTDENIED DUE PROCESS OF LAW.

II. THE PETITION FOR CERTIORARI IS PROCEDURALLY INFIRM.

A. LITIS PENDENTIA EXISTS IN THIS CASE.

B. PETITIONER HAS A PLAIN, SPEEDY AND ADEQUATE REMEDY IN THE


ORDINARY COURSE OF LAW.

III. PETITIONER IS NOTENTITLED TO A WRIT OF PRELIMINARY INJUNCTION AND/OR


TEMPORARY RESTRAINING ORDER.14

On 6 June 2014, Atty. Baligod filed his Comment to the present Petition. Atty. Baligod stated that
Sen. Estradas resort to a Petition for Certiorari under Rule 65 is improper. Sen. Estrada should have
either filed a motion for reconsideration of the 27 March 2014 Order or incorporated the alleged
irregularity in his motion for reconsideration of the 28 March 2014 Joint Resolution. There was also
no violation of Sen. Estradas right to due process because there is no rule which mandates that a
respondent such as Sen. Estrada be furnished with copies of the submissions of his corespondents.

On 16 June 2014, Sen. Estrada filed his Reply to the public respondents Comment. Sen. Estrada
insisted that he was denied due process. Although Sen. Estrada received copies of the counter-
affidavits of Cunanan, Amata, Relampagos, Buenaventura, Figura, Sevidal, as well as one of
Tuasons counter-affidavits, heclaimed that he was not given the following documents:

a) One other Counter-Affidavit of Ruby Tuason dated 21 February 2014;

b) Counter-Affidavit of Sofia D. Cruz dated 31 January 2014;

c) Counter-Affidavit of Evelyn Sugcang dated 11 February 2014;

d) Two (2) Counter-Affidavits of Alan A. Javellana dated 06 February 2014;

e) Counter-Affidavit of VictorRoman Cojamco Cacal dated 11 December 2013 (to the FIO
Complaint);
f) Counter-Affidavit of VictorRoman Cojamco Cacal dated 22 January 2014 (to the NBI
Complaint);

g) Two (2) counter-affidavits of Ma. Julie A. VillaralvoJohnson both dated 14 March 2014;

h) Counter-affidavit of Rhodora Bulatad Mendoza dated 06 March 2014;

i) Counter-affidavit of Maria Ninez P. Guaizo dated 28 January 2014;

j) Two (2) counter-affidavits of Marivic V. Jover both dated 09 December 2013; and

k) Counter-affidavit of Francisco B. Figura dated 08 January 2014. Sen. Estrada argues that
the Petition isnot rendered moot by the subsequent issuance of the 7 May 2014 Joint Order
because there is a recurring violation of his right to due process. Sen. Estrada also insists
that there is no forum shopping as the present Petition arose from an incident in the main
proceeding, and that he has no other plain, speedy, and adequate remedy in the ordinary
course of law. Finally, Sen. Estrada reiterates his application for the issuance of a temporary
restraining order and/or writ of preliminary injunction to restrain public respondents from
conducting further proceedings in OMB-C-C-13-0313 and OMB-C-C-13-0397.

This Courts Ruling

Considering the facts narrated above, the Ombudsmans denial in its 27 March 2014 Order of Sen.
Estradas Request did not constitute grave abuse of discretion. Indeed, the denial did not violate
Sen. Estradas constitutional right to due process.

First. There is no law or rule which requires the Ombudsman to furnish a respondent with copies of
the counter-affidavits of his co-respondents.

We reproduce below Sections 3 and 4, Rule 112 of the Revised Rules of Criminal Procedure, as well
as Rule II of Administrative Order No. 7, Rules of Procedure of the Office of the Ombudsman, for
ready reference.

From the Revised Rules of Criminal Procedure, Rule 112: Preliminary Investigation

Section 3. Procedure. The preliminary investigation shall be conducted in the following manner:

(a) The complaint shall state the address of the respondent and shall be accompanied by the
affidavits of the complainant and his witnesses, as well as other supporting documents to
establish probable cause. They shall be in such number of copies as there are respondents,
plus two (2) copies for the official file. The affidavits shall be subscribed and sworn to before
any prosecutor or government official authorized to administer oath, or, in their absence or
unavailability, before a notary public, each of who must certify thathe personally examined
the affiants and that he is satisfied that they voluntarily executed and understood their
affidavits.

(b) Within ten (10) days after the filing of the complaint, the investigating officer shall either
dismiss it if he finds no ground to continue with the investigation, or issue a subpoena to the
respondent attaching to it a copy of the complaint and its supporting affidavits and
documents. The respondent shall have the right to examine the evidence submitted by the
complainant which he may not have been furnished and to copy them at his expense. If the
evidence is voluminous, the complainant may be required to specify those which he intends
to present against the respondent, and these shall be made available for examination or
copying by the respondent at his expense.

Objects as evidence need not be furnished a party but shall be made available for
examination, copying, or photographing at the expense of the requesting party.

(c) Within ten (10) days from receipt of the subpoena with the complaint and supporting
affidavits and documents, the respondent shall submit his counter-affidavit and that of his
witnesses and other supporting documents relied upon for his defense. The counter-
affidavits shall be subscribed and sworn to and certified as provided in paragraph (a) of this
section, with copies thereof furnished by him to the complainant. The respondent shall not be
allowed to file a motion to dismiss in lieu of a counter-affidavit.

(d) If the respondent cannot be subpoenaed, or if subpoenaed, does not submit counter-
affidavits within the ten (10) day period, the investigating officer shall resolve the complaint
based on the evidence presented by the complainant.

(e) The investigating officer may set a hearing if there are facts and issues to be clarified
from a party ora witness. The parties can be present at the hearing but without the right to
examine or cross-examine. They may, however, submit to the investigating officer questions
which may be asked to the party or witness concerned.

The hearing shall be held within ten (10) days from submission of the counter-affidavits and
other documents or from the expiration of the period for their submission. It shall be
terminated within five (5) days.

(f) Within ten (10) days after the investigation, the investigating officer shall determine
whether or not there is sufficient ground to hold the respondent for trial. Section 4. Resolution
of investigating prosecutor and its review. If the investigating prosecutor finds cause to
hold the respondent for trial, he shall prepare the resolution and information. He shall certify
under oath in the information that he, or as shown by the record, an authorized officer, has
personally examined the complainant and his witnesses; that there is reasonable ground to
believe that a crime has been committed and that the accused is probably guilty thereof; that
the accused was informed of the complaint and of the evidence submitted against him; and
that he was given an opportunity to submit controverting evidence. Otherwise, he shall
recommend the dismissal of the complaint.

Within five (5) days from his resolution, he shall forward the record of the case to the
provincial or city prosecutor or chief state prosecutor, or to the Ombudsman orhis deputy in
cases of offenses cognizable by the Sandiganbayan in the exercise of its original jurisdiction.
They shall act on the resolution within ten (10) days from their receipt thereof and shall
immediately inform the parties of such action.

No complaint or information may be filed or dismissed by an investigating prosecutor without the


prior written authority or approval of the provincial or city prosecutor or chief state prosecutor or the
Ombudsman or his deputy.

Where the investigating prosecutor recommends the dismissal of the complaint but his
recommendation is disapproved by the provincial or city prosecutor or chief state prosecutor or the
Ombudsman or his deputy on the ground that a probable cause exists, the latter may, by himself, file
the information against the respondent, or direct any other assistant prosecutor or state prosecutor
to do so without conducting another preliminary investigation.

If upon petition by a proper party under such rules as the Department of Justice may prescribe or
motu proprio, the Secretary of Justice reverses or modifies the resolution of the provincial or city
prosecutor or chief state prosecutor, he shall direct the prosecutor concerned either to file the
corresponding information without conducting another preliminary investigation, or to dismiss or
move for dismissal of the complaint or information with notice to the parties. The same rule shall
apply in preliminary investigations conducted by the officers of the Office of the Ombudsman. From
the Rules of Procedure of the Office of the Ombudsman, Administrative Order No. 7, Rule II:
Procedure in Criminal Cases

Section 1. Grounds. A criminal complaint may be brought for an offense in violation of R.A.
3019,as amended, R.A. 1379, as amended, R.A. 6713, Title VII, Chapter II, Section 2 of the Revised
Penal Code, and for such other offenses committed by public officers and employees in relation to
office.

Sec. 2. Evaluation. Upon evaluating the complaint, the investigating officer shall recommend
whether it may be:

a) dismissed outright for want of palpable merit;

b) referred to respondent for comment;

c) indorsed to the proper government office or agency which has jurisdiction over the case;

d) forwarded to the appropriate office or official for fact-finding investigation;

e) referred for administrative adjudication; or

f) subjected to a preliminary investigation.

Sec. 3. Preliminary investigation; who may conduct. Preliminary investigation may be conducted
by any of the following:

1) Ombudsman Investigators;

2) Special Prosecuting Officers;

3) Deputized Prosecutors;

4) Investigating Officials authorized by law to conduct preliminary investigations; or

5) Lawyers in the government service, so designated by the Ombudsman.

Sec. 4. Procedure. The preliminary investigation of cases falling under the jurisdiction of the
Sandiganbayan and Regional Trial Courts shall be conducted in the manner prescribed in Section 3,
Rule 112 of the Rules of Court, subject to the following provisions:
a) If the complaint is not under oath or is based only on official reports, the investigating
officer shall require the complainant or supporting witnesses to execute affidavits to
substantiate the complaints.

b) After such affidavits have been secured, the investigating officer shall issue an order,
attaching thereto a copy of the affidavits and other supporting documents, directing the
respondent to submit, within ten (10) days from receipt thereof, his counter-affidavits and
controverting evidence with proof of service thereof on thecomplainant. The complainant
may file reply affidavits within ten (10) days after service of the counter-affidavits.

c) If the respondent does not file a counter-affidavit, the investigating officer may consider
the comment filed by him, if any, as his answer to the complaint. In any event, the
respondent shall have access to the evidence on record.

d) No motion to dismiss shall be allowed except for lack of jurisdiction. Neither may a motion
for a bill of particulars be entertained. If respondent desires any matter in the complainants
affidavit to be clarified, the particularization thereof may be done at the time of clarificatory
questioning in the manner provided in paragraph (f) of this section.

e) If the respondent cannot be served with the order mentioned in paragraph 6 hereof, or
having been served, does not comply therewith, the complaint shall be deemed submitted for
resolution on the basis of the evidence on record.

f) If, after the filing of the requisite affidavits and their supporting evidences, there are facts
material to the case which the investigating officer may need to be clarified on, he may
conduct a clarificatory hearing during which the parties shall be afforded the opportunity to
be present but without the right to examine or cross-examine the witness being questioned.
Where the appearance of the parties or witnesses is impracticable, the clarificatory
questioning may be conducted in writing, whereby the questions desired to be asked by the
investigating officer or a party shall be reduced into writing and served on the witness
concerned who shall be required to answer the same in writing and under oath.

g) Upon the termination of the preliminary investigation, the investigating officer shall forward
the records of the case together with his resolution to the designated authorities for their
appropriate action thereon.

No information may be filed and no complaint may be dismissed without the written authority or
approval of the Ombudsman in cases falling within the jurisdiction of the Sandiganbayan, or of the
proper Deputy Ombudsman in all other cases.

xxxx

Sec. 6. Notice to parties. The parties shall be served with a copy of the resolution as finally
approved by the Ombudsman or by the proper Deputy Ombudsman.

Sec. 7. Motion for reconsideration. a) Only one (1) motion for reconsideration or reinvestigation of
anapproved order or resolution shall be allowed, the same to be filed within fifteen (15) days from
notice thereof with the Office of the Ombudsman, or the proper deputy ombudsman as the case may
be.

xxxx
b) The filing of a motion for reconsideration/reinvestigation shall not bar the filing of the
corresponding Information in court on the basis of the finding of probable cause in the resolution
subject of the motion. (Emphasis supplied)

Sen. Estrada claims that the denial of his Request for the counter affidavits of his co-respondents
violates his constitutional right to due process. Sen. Estrada, however, fails to specify a law or rule
which states that it is a compulsory requirement of due process in a preliminary investigation that the
Ombudsman furnish a respondent with the counter-affidavits of his co-respondents. Neither Section
3(b), Rule 112 of the Revised Rules of Criminal Procedure nor Section 4(c), Rule II of the Rules of
Procedure of the Office of the Ombudsman supports Sen. Estradas claim. What the Rules of
Procedure of the Office of the Ombudsman require is for the Ombudsman to furnish the respondent
with a copy of the complaint and the supporting affidavits and documents at the time the order to
submit the counter-affidavit is issued to the respondent. This is clear from Section 4(b), Rule II of the
Rules of Procedure of the Office of the Ombudsman when it states, "[a]fter such affidavits [of the
complainant and his witnesses] have been secured, the investigating officer shall issue an order,
attaching thereto a copy of the affidavits and other supporting documents, directing the respondent
to submit, within ten (10) days from receipt thereof, his counter-affidavits x x x." At this point, there is
still no counter-affidavit submitted by any respondent. Clearly, what Section 4(b) refers to are
affidavits of the complainant and his witnesses, not the affidavits of the co-respondents. Obviously,
the counter-affidavits of the co-respondents are not part of the supporting affidavits of the
complainant. No grave abuse of discretion can thus be attributed to the Ombudsman for the
issuance of the 27 March 2014 Order which denied Sen. Estradas Request.

Although Section 4(c), Rule II of the Rules of Procedure of the Office of the Ombudsman provides
that a respondent "shall have access to the evidence on record," this provision should be construed
in relation to Section 4(a) and (b) of the same Rule, as well as to the Rules of Criminal Procedure.
First, Section 4(a) states that "theinvestigating officer shall require the complainant or supporting
witnesses to execute affidavits to substantiate the complaint." The "supporting witnesses" are the
witnesses of the complainant, and do not refer to the co-respondents.

Second, Section 4(b) states that "the investigating officer shall issue an order attaching thereto a
copy of the affidavits and all other supporting documents, directing the respondent" tosubmit his
counter-affidavit. The affidavits referred to in Section 4(b) are the affidavits mentioned in Section

4(a). Clearly, the affidavits to be furnished to the respondent are the affidavits of the complainant
and his supporting witnesses. The provision in the immediately succeeding Section 4(c) of the same
Rule II that a respondent shall have "access to the evidence on record" does not stand alone, but
should be read in relation to the provisions of Section 4(a and b) of the same Rule II requiring the
investigating officer to furnish the respondent with the "affidavits and other supporting documents"
submitted by "the complainant or supporting witnesses." Thus, a respondents "access to evidence
on record" in Section 4(c), Rule II of the Ombudsmans Rules of Procedure refers to the affidavits
and supporting documents of "the complainant or supporting witnesses" in Section 4(a) of the same
Rule II.

Third, Section 3(b), Rule 112 of the Revised Rules of Criminal Procedure provides that "[t]he
respondent shall have the right to examine the evidence submitted by the complainant which he may
not have been furnished and to copy them at his expense." A respondents right to examine refers
only to "the evidence submitted by the complainant."

Thus, whether under Rule 112 of the Revised Rules of Criminal Procedure or under Rule II of the
Ombudsmans Rules of Procedure, there is no requirement whatsoever that the affidavits executed
by the corespondents should be furnished to a respondent. Justice Velascos dissent relies on the
ruling in Office of the Ombudsman v. Reyes (Reyes case),15 an administrative case, in which a
different set of rules of procedure and standards apply. Sen. Estradas Petition, in contrast, involves
the preliminary investigation stage in a criminal case. Rule III on the Procedure in Administrative
Cases of the Rules of Procedure of the Office of the Ombudsman applies in the Reyes case, while
Rule II on the Procedure in Criminal Cases of the Rules of Procedure of the Office of the
Ombudsman applies in Sen. Estradas Petition. In both cases, the Rules of Court apply in a
suppletory character or by analogy.16

In the Reyescase, the complainant Acero executed an affidavit against Reyes and Pealoza, who
were both employees of the Land Transportation Office. Pealoza submitted his counter-affidavit, as
well as those of his two witnesses. Reyes adopted his counter-affidavit in another case before the
Ombudsman as it involved the same parties and the same incident. None of the parties appeared
during the preliminary conference. Pealoza waived his right to a formal investigation and was
willing to submit the case for resolution based on the evidence on record. Pealoza also submitted a
counter-affidavit of his third witness. The Ombudsman found Reyes guilty of grave misconduct and
dismissed him from the service. On the other hand, Pealoza was found guilty of simple misconduct
and penalized with suspension from office without pay for six months. This Court agreed with the
Court of Appeals finding that Reyes right to due process was indeed violated. This Court remanded
the records of the case to the Ombudsman, for two reasons: (1) Reyes should not have been meted
the penalty of dismissal from the service when the evidence was not substantial, and (2) there was
disregard of Reyes right to due process because he was not furnished a copy of the counter-
affidavits of Pealoza and of Pealozas three witnesses. In the Reyes case, failure to furnish a copy
of the counter-affidavits happened in the administrative proceedings on the merits, which resulted in
Reyes dismissal from the service. In Sen. Estradas Petition, the denial of his Request happened
during the preliminary investigation where the only issue is the existence of probable cause for the
purpose of determining whether an information should be filed, and does not prevent Sen. Estrada
from requesting a copy of the counter-affidavits of his co-respondents during the pre-trial or even
during the trial.

We should remember to consider the differences in adjudicating cases, particularly an administrative


case and a criminal case:

Any lawyer worth his salt knows that quanta of proof and adjective rules vary depending on whether
the cases to which they are meant to apply are criminal, civil or administrative in character. In
criminal actions, proof beyond reasonable doubt is required for conviction;in civil actions and
proceedings, preponderance of evidence, as support for a judgment; and in administrative cases,
substantial evidence, as basis for adjudication. In criminal and civil actions, application of the Rules
of Court is called for, with more or less strictness. In administrative proceedings, however, the
technical rules of pleadingand procedure, and of evidence, are not strictly adhered to; they generally
apply only suppletorily; indeed, in agrarian disputes application of the Rules of Court is actually
prohibited.17

It should be underscored that the conduct of a preliminary investigation is only for the determination
of probable cause, and "probable cause merely implies probability of guilt and should be determined
in a summary manner. A preliminary investigation is not a part of the trial and it is only in a trial
where an accused can demand the full exercise of his rights, such as the right to confront and cross-
examine his accusers to establish his innocence."18Thus, the rights of a respondent in a preliminary
investigation are limited to those granted by procedural law.

A preliminary investigation is defined as an inquiry or proceeding for the purpose of determining


whether there is sufficient ground to engender a well founded belief that a crime cognizable by the
Regional Trial Court has been committed and that the respondent is probably guilty thereof, and
should be held for trial. The quantum of evidence now required in preliminary investigation is such
evidence sufficient to "engender a well founded belief" as tothe fact of the commission of a crime
and the respondent's probable guilt thereof. A preliminary investigation is not the occasion for the full
and exhaustive display of the parties evidence; it is for the presentation of such evidence only as
may engender a well-grounded belief that an offense has been committed and that the accused is
probably guilty thereof. We are in accord with the state prosecutors findings in the case at bar that
there exists prima facie evidence of petitioners involvement in the commission of the crime, it being
sufficiently supported by the evidence presented and the facts obtaining therein.

Likewise devoid of cogency is petitioners argument that the testimonies of Galarion and Hanopol
are inadmissible as to him since he was not granted the opportunity of cross-examination.

It is a fundamental principle that the accused in a preliminary investigation has no right to cross-
examine the witnesses which the complainant may present. Section 3, Rule 112 of the Rules of
Court expressly provides that the respondent shall only have the right to submit a counter-affidavit,
to examine all other evidence submitted by the complainant and, where the fiscal sets a hearing to
propound clarificatory questions to the parties or their witnesses, to be afforded an opportunity to be
present but without the right to examine or cross-examine. Thus, even if petitioner was not given the
opportunity to cross-examine Galarion and Hanopol atthe time they were presented to testify during
the separate trial of the case against Galarion and Roxas, he cannot assert any legal right to cross-
examine them at the preliminary investigation precisely because such right was never available to
him. The admissibility or inadmissibility of said testimonies should be ventilated before the trial court
during the trial proper and not in the preliminary investigation.

Furthermore, the technical rules on evidence are not binding on the fiscal who has jurisdiction and
control over the conduct of a preliminary investigation. If by its very nature a preliminary investigation
could be waived by the accused, we find no compelling justification for a strict application of the
evidentiary rules. In addition, considering that under Section 8, Rule 112 of the Rules of Court, the
record of the preliminary investigation does not form part of the record of the case in the Regional
Trial Court, then the testimonies of Galarion and Hanopol may not be admitted by the trial court if not
presented in evidence by the prosecuting fiscal. And, even if the prosecution does present such
testimonies, petitioner can always object thereto and the trial court can rule on the admissibility
thereof; or the petitioner can, during the trial, petition said court to compel the presentation of
Galarion and Hanopol for purposes of cross-examination.19 (Emphasis supplied)

Furthermore, in citing the Reyes case, Justice Velascos dissent overlooked a vital portion of the
Court of Appeals reasoning. This Court quoted from the Court of Appeals decision: "x x x
[A]dmissions made by Pealoza in his sworn statement are binding only on him. Res inter alios act a
alteri nocere non debet. The rights of a party cannot be prejudiced by an act, declaration or omission
of another." In OMB-C-C-13-0313 and OMB-C-C-13-0397, the admissions of Sen. Estradas co-
respondents can in no way prejudice Sen. Estrada. Even granting Justice Velascos argument that
the 28 March 2014 Joint Resolution in OMB-C-C-13-0313 and OMB-C-C-13-039720 mentioned the
testimonies of Sen. Estradas corespondents like Tuason and Cunanan, their testimonies were
merely corroborative of the testimonies of complainants witnesses Benhur Luy, Marina Sula, and
Merlina Suas and were not mentioned in isolation from the testimonies of complainants witnesses.

Moreover, the sufficiency of the evidence put forward by the Ombudsman against Sen. Estrada to
establish its finding of probable cause in the 28 March 2014 Joint Resolution in OMB-C-C-13-0313
and OMB-CC-13-0397 was judicially confirmed by the Sandiganbayan, when it examined the
evidence, found probable cause, and issued a warrant of arrest against Sen. Estrada on 23 June
2014.
We likewise take exception to Justice Brions assertion that "the due process standards that at the
very least should be considered in the conduct of a preliminary investigation are those that this Court
first articulated in Ang Tibay v. Court of Industrial Relations [Ang Tibay]."21 Simply put, the Ang Tibay
guidelines for administrative cases do not apply to preliminary investigations in criminal cases. An
application of the Ang Tibay guidelines to preliminary investigations will have absurd and disastrous
consequences.

Ang Tibay enumerated the constitutional requirements of due process, which Ang Tibay described
as the "fundamental and essential requirements of due process in trials and investigations of an
administrative character."22 These requirements are "fundamental and essential" because without
these, there isno due process as mandated by the Constitution. These "fundamental and essential
requirements" cannot be taken away by legislation because theyare part of constitutional due
process. These "fundamental and essential requirements" are:

(1) The first of these rights is the right to a hearing, which includes the right of the party
interested or affected to present his own case and submit evidence in support thereof. x x x.

(2) Not only must the party be given an opportunity to present his case and adduce evidence
tending to establish the rights which he asserts but the tribunal must consider the evidence
presented. x x x.

(3) "While the duty to deliberatedoes not impose the obligation to decide right, it does imply a
necessity which cannot be disregarded, namely, that of having something to support its
decision. A decision with absolutely nothing to support it is a nullity, x x x."

(4) Not only must there be some evidence to support a finding or conclusion, but the
evidence must be "substantial." "Substantial evidence is more than a mere scintilla. It means
such relevant evidence as a reasonable mind might accept as adequate to support a
conclusion." x x x.

(5) The decision must be rendered on the evidence presented at the hearing, or at least
contained in the record and disclosed to the parties affected. x x x.

(6) The Court of Industrial Relations or any of its judges, therefore, must act on its or his own
independent consideration of the law and facts of the controversy, and not simply accept the
views of a subordinate in arriving at a decision. x x x.

(7) The Court of Industrial Relations should, in all controversial questions, render its decision
in sucha manner that the parties to the proceeding can know the various issues involved,
and the reasons for the decisions rendered. The performance of this duty is inseparable from
the authority conferred upon it.23

The guidelines set forth in Ang Tibay are further clarified in GSIS v. CA24 (GSIS): "what Ang Tibay
failed to explicitly state was, prescinding from the general principles governing due process, the
requirement of an impartial tribunalwhich, needless to say, dictates that one called upon to resolve a
dispute may not sit as judge and jury simultaneously, neither may he review his decision on
appeal."25 The GSIS clarification affirms the non applicability of the Ang Tibay guidelines to
preliminary investigations in criminal cases: The investigating officer, which is the role that the Office
of the Ombudsman plays in the investigation and prosecution of government personnel, will never be
the impartial tribunal required in Ang Tibay, as amplified in GSIS. The purpose of the Office of the
Ombudsman in conducting a preliminary investigation, after conducting its own factfinding
investigation, is to determine probable cause for filing an information, and not to make a final
adjudication of the rights and obligations of the parties under the law, which is the purpose of the
guidelines in Ang Tibay. The investigating officer investigates, determines probable cause, and
prosecutes the criminal case after filing the corresponding information.

The purpose in determining probable cause is to make sure that the courts are not clogged with
weak cases that will only be dismissed, as well as to spare a person from the travails of a needless
prosecution.26 The Ombudsman and the prosecution service under the control and supervision of the
Secretary of the Department of Justice are inherently the fact-finder, investigator, hearing officer,
judge and jury of the respondent in preliminary investigations. Obviously, this procedure cannot
comply with Ang Tibay, as amplified in GSIS. However, there is nothing unconstitutional with this
procedure because this is merely an Executive function, a part of the law enforcement process
leading to trial in court where the requirements mandated in Ang Tibay, as amplified in GSIS, will
apply. This has been the procedure under the 1935, 1973 and 1987 Constitutions. To now rule that
Ang Tibay, as amplified in GSIS, should apply to preliminary investigations will mean that all past
and present preliminary investigations are in gross violation of constitutional due process.

Moreover, a person under preliminary investigation, as Sen. Estrada is in the present case when he
filed his Request, is not yet an accused person, and hence cannot demand the full exercise of the
rights of an accused person:

A finding of probable cause needs only to rest on evidence showing that more likely than not a crime
has been committed and was committed by the suspects. Probable cause need not be based on
clear and convincing evidence of guilt, neither on evidence establishing guilt beyond reasonable
doubt and definitely, not on evidence establishing absolute certainty of guilt. As well put in Brinegar
v. United States, while probable cause demands more than "bare suspicion," it requires "less than
evidence which would justify . . . conviction." A finding of probable cause merely binds over the
suspect to stand trial. It is not a pronouncement of guilt.

Considering the low quantum and quality of evidence needed to support a finding of probable cause,
wealso hold that the DOJ Panel did not gravely abuse its discretion in refusing to call the NBI
witnesses for clarificatory questions. The decision to call witnesses for clarificatory questions is
addressed to the sound discretion of the investigator and the investigator alone. If the evidence on
hand already yields a probable cause, the investigator need not hold a clarificatory hearing. To
repeat, probable cause merely implies probability of guilt and should be determined in a summary
manner. Preliminary investigation is not a part of trial and it is only in a trial where an accused can
demand the full exercise of his rights, such as the right to confront and cross-examine his accusers
to establish his innocence. In the case at bar, the DOJ Panel correctly adjudged that enough
evidence had been adduced to establish probable cause and clarificatory hearing was
unnecessary.27

Justice J.B.L. Reyes, writing for the Court, emphatically declared in Lozada v. Hernandez,28 that the
"rights conferred upon accused persons to participate in preliminary investigations concerning
themselves depend upon the provisions of law by which such rights are specifically secured, rather
than upon the phrase due process of law." This reiterates Justice Jose P. Laurels oft-quoted
pronouncement in Hashim v. Boncan29 that "the right to a preliminary investigation is statutory, not
constitutional." In short, the rights of a respondent ina preliminary investigation are merely statutory
rights, not constitutional due process rights. An investigation to determine probable cause for the
filing of an information does not initiate a criminal action so as to trigger into operation Section 14(2),
Article III of the Constitution.30 It is the filing of a complaint or information in court that initiates a
criminal action.31
The rights to due process in administrative cases as prescribed in Ang Tibay,as amplified in GSIS,
are granted by the Constitution; hence, these rights cannot be taken away by merelegislation. On
the other hand, as repeatedly reiterated by this Court, the right to a preliminary investigation is
merely a statutory right,32 not part of the "fundamental and essential requirements" of due process as
prescribed in Ang Tibay and amplified in GSIS. Thus, a preliminary investigation can be taken away
by legislation. The constitutional right of an accused to confront the witnesses against him does not
apply in preliminary investigations; nor will the absence of a preliminary investigation be an
infringement of his right to confront the witnesses against him.33 A preliminary investigation may be
done away with entirely without infringing the constitutional right of an accused under the due
process clause to a fair trial.34

The quantum of evidence needed in Ang Tibay, as amplified in GSIS, is greater than the
evidenceneeded in a preliminary investigation to establish probable cause, or to establish the
existence of a prima facie case that would warrant the prosecution of a case. Ang Tibay refers to
"substantial evidence," while the establishment of probable cause needs "only more than bare
suspicion, or less than evidence which would justify . . . conviction." In the United States, from
where we borrowed the concept of probable cause,35 the prevailing definition of probable cause is
this:

In dealing with probable cause, however, as the very name implies, we deal with probabilities.These
are not technical; they are the factual and practical considerations of everyday life on which
reasonable and prudent men, not legal technicians, act. The standard of proof is accordingly
correlative to what must be proved.

"The substance of all the definitions" of probable cause "is a reasonable ground for belief of guilt."
McCarthy v. De Armit, 99 Pa. St. 63, 69, quoted with approval in the Carroll opinion. 267 U. S. at
161. And this "means less than evidence which would justify condemnation" or conviction, as
Marshall, C. J., said for the Court more than a century ago in Locke v. United States, 7 Cranch 339,
348. Since Marshalls time, at any rate, it has come to mean more than bare suspicion: Probable
cause exists where "the facts and circumstances within their [the officers] knowledge and of which
they had reasonably trustworthy information [are] sufficient in themselves to warrant a man of
reasonable caution in the belief that" an offense has been or is being committed. Carroll v. United
States, 267 U. S. 132, 162.

These long-prevailing standards seek to safeguard citizens from rash and unreasonable
interferences with privacy and from unfounded charges of crime. They also seek to give fair leeway
for enforcing the law in the communitys protection. Because many situations which confront officers
in the course of executing their duties are more or less ambiguous, room must be allowed for some
mistakes on their part. But the mistakes must be those of reasonable men, acting on facts leading
sensibly to their conclusions of probability. The rule of probable cause is a practical, non technical
conception affording the best compromise that has been found for accommodating these often
opposing interests. Requiring more would unduly hamper law enforcement. To allow less would be
to leave law-abiding citizens at the mercy of the officers whim or caprice.36

In the Philippines, there are four instances in the Revised Rules of Criminal Procedure where
probable cause is needed to be established:

(1) In Sections 1 and 3 of Rule 112: By the investigating officer, to determine whether there
is sufficient ground to engender a well-founded belief that a crime has been committed and
the respondent is probably guilty thereof, and should be held for trial. A preliminary
investigation is required before the filing of a complaint or information for an offense where
the penalty prescribed by law is at least four years, two months and one day without regard
to the fine;

(2) In Sections 6 and 9 of Rule 112: By the judge, to determine whether a warrant of arrest or
a commitment order, if the accused has already been arrested, shall be issued and that there
is a necessity of placing the respondent under immediate custody in order not to frustrate the
ends of justice;

(3) In Section 5(b) of Rule 113: By a peace officer or a private person making a warrantless
arrest when an offense has just been committed, and he has probable cause to believe
based on personal knowledge of facts or circumstances that the person to be arrested has
committed it; and

(4) In Section 4 of Rule 126: By the judge, to determine whether a search warrant shall be
issued, and only upon probable cause in connection with one specific offense to be
determined personally by the judge after examination under oath or affirmation of the
complainant and the witnesses he may produce, and particularly describing the place to be
searched and the things to be seized which may be anywhere in the Philippines.

In all these instances, the evidence necessary to establish probable cause is based only on the
likelihood, or probability, of guilt. Justice Brion, in the recent case of Unilever Philippines, Inc. v.
Tan37 (Unilever), stated:

The determination of probable cause needs only to rest on evidence showing that more likely than
not, a crime has been committed and there is enough reason to believe that it was committed by the
accused. It need not be based on clear and convincing evidence of guilt, neither on evidence
establishing absolute certainty of guilt. What is merely required is "probability of guilt." Its
determination, too, does not call for the application of rules or standards of proof that a judgment of
conviction requires after trial on the merits. Thus, in concluding that there is probable cause, it
suffices that it is believed that the act or omission complained of constitutes the very offense
charged.

It is also important to stress that the determination of probable cause does not depend on the validity
or merits of a partys accusation or defense or on the admissibility or veracity of testimonies
presented. As previously discussed, these matters are better ventilated during the trial proper of the
case. As held in Metropolitan Bank & Trust Company v. Gonzales:

Probable cause has been defined as the existence of such facts and circumstances as would excite
the belief in a reasonable mind, acting on the facts within the knowledge of the prosecutor, that the
person charged was guilty of the crime for which he was prosecuted. x x x. The term does not mean
"actual or positive cause" nor does it import absolute certainty. It is merely based on opinion and
reasonable belief. Thus, a finding of probable cause does not require an inquiry into whether there is
sufficient evidence to procure a conviction. It is enough that it is believed that the act or omission
complained of constitutes the offense charged. Precisely, there is a trial for the reception of evidence
of the prosecution in support of the charge. (Bold facing and italicization supplied)

Justice Brions pronouncement in Unilever that "the determination of probable cause does not
depend on the validity or merits of a partys accusation or defense or on the admissibility or veracity
of testimonies presented" correctly recognizes the doctrine in the United States that the
determination of probable cause can rest partially, or even entirely, on hearsay evidence, as long as
the person making the hearsay statement is credible. In United States v. Ventresca,38 the United
States Supreme Court held:
While a warrant may issue only upon a finding of "probable cause," this Court has long held that "the
term probable cause . . . means less than evidence which would justify condemnation," Locke v.
United States, 7 Cranch 339, 11 U.S. 348, and that a finding of "probable cause" may rest upon
evidence which is not legally competent in a criminal trial. Draper v. United States, 358 U.S. 307,
358 U.S. 311. As the Court stated in Brinegar v. United States, 338 U.S. 160, 173, "There is a large
difference between the two things tobe proved (guilt and probable cause), as well as between the
tribunals which determine them, and therefore a like difference in the quanta and modes of proof
required to establish them." Thus, hearsay may be the basis for issuance of the warrant "so long as
there . . . [is] a substantial basis for crediting the hearsay." Jones v. United States, supra, at 362 U.S.
272. And, in Aguilar, we recognized that "an affidavit may be based on hearsay information and
need not reflect the direct personal observations of the affiant," so long as the magistrate is
"informed of some of the underlying circumstances" supporting the affiants conclusions and his
belief that any informant involved "whose identity need not be disclosed . . ." was "credible" or his
information "reliable." Aguilar v. Texas, supra, at 378 U.S. 114. (Emphasis supplied)

Thus, probable cause can be established with hearsay evidence, as long as there is substantial
basis for crediting the hearsay. Hearsay evidence is admissible in determining probable cause in a
preliminary investigation because such investigation is merely preliminary, and does not finally
adjudicate rights and obligations of parties. However, in administrative cases, where rights and
obligations are finally adjudicated, what is required is "substantial evidence" which cannot rest
entirely or even partially on hearsay evidence. Substantial basis is not the same as substantial
evidence because substantial evidence excludes hearsay evidence while substantial basis can
include hearsay evidence. To require the application of Ang Tibay, as amplified in GSIS, in
preliminary investigations will change the quantum of evidence required in determining probable
cause from evidence of likelihood or probability of guilt to substantial evidence of guilt.

It is, moreover, necessary to distinguish between the constitutionally guaranteed rights of an


accused and the right to a preliminary investigation. To treat them the same will lead toabsurd and
disastrous consequences.

All pending criminal cases in all courts throughout the country will have to be remanded to the
preliminary investigation level because none of these will satisfy Ang Tibay, as amplified in GSIS.
Preliminary investigations are conducted by prosecutors, who are the same officials who will
determine probable cause and prosecute the cases in court. The prosecutor is hardly the impartial
tribunal contemplated in Ang Tibay, as amplified in GSIS. A reinvestigation by an investigating officer
outside of the prosecution service will be necessary if Ang Tibay, as amplified in GSIS, were to be
applied. This will require a new legislation. In the meantime, all pending criminal cases in all courts
will have to be remanded for reinvestigation, to proceed only when a new law is in place. To require
Ang Tibay, as amplified in GSIS, to apply to preliminary investigation will necessarily change the
concept of preliminary investigation as we know it now. Applying the constitutional due process in
Ang Tibay, as amplified in GSIS, to preliminary investigation will necessarily require the application
of the rights of an accused in Section 14(2), Article III of the 1987 Constitution. This means that the
respondent can demand an actual hearing and the right to cross-examine the witnesses against him,
rights which are not afforded at present toa respondent in a preliminary investigation.

The application of Ang Tibay, as amplified in GSIS, is not limited to those with pending preliminary
investigations but even to those convicted by final judgment and already serving their sentences.
The rule is well-settled that a judicial decision applies retroactively if it has a beneficial effect on a
person convicted by final judgment even if he is already serving his sentence, provided that he is not
a habitual criminal.39 This Court retains its control over a case "until the full satisfaction of the final
judgment conformably with established legal processes."40 Applying Ang Tibay, as amplified in GSIS,
to preliminary investigations will result in thousands of prisoners, convicted by final judgment, being
set free from prison.
Second. Sen. Estradas present Petition for Certiorari is premature.

Justice Velascos dissent prefers thatSen. Estrada not "be subjected to the rigors of a criminal
prosecution incourt" because there is "a pending question regarding the Ombudsmans grave abuse
of its discretion preceding the finding of a probable cause to indict him." Restated bluntly, Justice
Velascos dissent would like this Court to conclude that the mere filing of the present Petition for
Certiorari questioning the Ombudsmans denial of Sen. Estradas Request should have, by itself,
voided all proceedings related to the present case.

Although it is true that, in its 27 March 2014 Order, the Ombudsman denied Sen. Estradas Request,
the Ombudsman subsequently reconsidered its Order. On 7 May 2014, the same date that Sen.
Estrada filed the present Petition, the Ombudsman issued a Joint Order in OMB-C-C-13-0313 and
OMB-C-C-13-0397 that furnishedSen. Estrada with the counter-affidavits of Ruby Tuason, Dennis
Cunanan, Gondelina Amata, Mario Relampagos, Francisco Figura, Gregoria Buenaventura, and
AlexisSevidal, and directed him to comment within a non-extendible period of five days from receipt
of said Order. Sen. Estrada did not file any comment, as noted in the 4 June 2014 Joint Order of the
Ombudsman.

On 4 June 2014, the Ombudsman issued another Joint Order and denied Sen. Estradas Motion for
Reconsideration ofits 28 March 2014 Joint Resolution which found probable cause toindict Sen.
Estrada and his corespondents with one count of plunder and 11 counts of violation of Section 3(e),
Republic Act No. 3019. In this 4 June 2014 Joint Order, the Ombudsman stated that "[t]his Office, in
fact, held in abeyance the disposition of motions for reconsideration in this proceeding in light of its
grant to Senator Estrada a period of five days from receipt of the 7 May 2014 Order to formally
respond to the above-named respondents claims."

We underscore Sen. Estradas procedural omission. Sen. Estrada did not file any pleading, much
less a motion for reconsideration, to the 27 March 2014 Order inOMB-C-C-13-0313. Sen. Estrada
immediately proceeded to file this Petition for Certiorari before this Court. Sen. Estradas resort to a
petitionfor certiorari before this Court stands in stark contrast to his filing of his 7 April 2014 Motion
for Reconsideration of the 28 March 2014 Joint Resolution finding probable cause. The present
Petition for Certiorari is premature.

A motion for reconsideration allows the public respondent an opportunity to correct its factual and
legal errors. Sen. Estrada, however, failed to present a compelling reason that the present Petition
falls under the exceptions41to the general rule that the filing of a motion for reconsideration is required
prior to the filing of a petition for certiorari. This Court has reiterated in numerous decisions that a
motion for reconsideration is mandatory before the filing of a petition for certiorari.42

Justice Velascos dissent faults the majority for their refusal to apply the Reyes case to the present
Petition. Justice Velascos dissent insists that "this Court cannot neglect to emphasize that, despite
the variance in the quanta of evidence required, a uniform observance of the singular concept of due
process is indispensable in all proceedings."

As we try to follow Justice Velascos insistence, we direct Justice Velasco and those who join him in
his dissent to this Courts ruling in Ruivivar v. Office of the Ombudsman (Ruivivar),43 wherein we
stated that "[t]he law can no longer help one who had been given ample opportunity to be heard but
who did not take full advantage of the proffered chance."

The Ruivivar case, like the Reyes44 case, was also an administrative case before the Ombudsman.
The Ombudsman found petitioner Rachel Beatriz Ruivivar administratively liable for discourtesy in
the course of her official functions and imposed on her the penalty of reprimand. Petitioner filed a
motion for reconsideration of the decision on the ground that she was not furnished copies of the
affidavits of the private respondents witnesses. The Ombudsman subsequently ordered that
petitioner be furnished with copies of the counter-affidavits of private respondents witnesses, and
that petitioner should "file, within ten (10) days from receipt of this Order, such pleading which she
may deem fit under the circumstances." Petitioner received copies of the affidavits, and simply filed a
manifestation where she maintained that her receipt of the affidavits did not alter the deprivation of
her right to due process or cure the irregularity in the Ombudsmans decision to penalize her.

In Ruivivar, petitioner received the affidavits of the private respondents witnesses afterthe
Ombudsman rendered a decision against her. We disposed of petitioners deprivation of due
process claim in this manner:

The CA Decision dismissed the petition for certiorari on the ground that the petitioner failed to
exhaust all the administrative remedies available to her before the Ombudsman. This ruling is
legallycorrect as exhaustion of administrative remedies is a requisite for the filing of a petition for
certiorari. Other than this legal significance, however, the ruling necessarily carries the direct and
immediate implication that the petitioner has been granted the opportunity to be heard and has
refused to avail of this opportunity; hence, she cannot claim denial of due process. In the words of
the CA ruling itself: "Petitioner was given the opportunity by public respondent to rebut the affidavits
submitted by private respondent. . . and had a speedy and adequate administrative remedy but she
failed to avail thereof for reasons only known to her."

For a fuller appreciation of our above conclusion, we clarify that although they are separate and
distinct concepts, exhaustion of administrative remedies and due process embody linked and related
principles. The "exhaustion" principle applies when the ruling court or tribunal is not given the
opportunity tore-examine its findings and conclusions because of an available opportunity that a
party seeking recourse against the court or the tribunals ruling omitted to take. Under the concept of
"due process," on the other hand, a violation occurs when a court or tribunal rules against a party
without giving him orher the opportunity to be heard. Thus, the exhaustion principle is based on the
perspective of the ruling court or tribunal, while due process is considered from the point of view of
the litigating party against whom a ruling was made. The commonality they share is in the
same"opportunity" that underlies both. In the context of the present case, the available opportunity to
consider and appreciate the petitioners counter-statement offacts was denied the Ombudsman;
hence, the petitioner is barred from seeking recourse at the CA because the ground she would
invoke was not considered at all at the Ombudsman level. At the same time, the petitioner who
had the same opportunity to rebut the belatedly-furnished affidavits of the private respondents
witnesses was not denied and cannot now claim denial of due process because she did not take
advantage of the opportunity opened to her at the Ombudsman level.

The records show that the petitioner duly filed a motion for reconsideration on due process grounds
(i.e., for the private respondents failure to furnish her copies of the affidavits of witnesses) and on
questions relating to the appreciation of the evidence on record. The Ombudsman acted on this
motion by issuing its Order of January 17, 2003 belatedly furnishing her with copies of the private
respondents witnesses, together with the "directive to file, within ten (10) days from receipt of this
Order, such pleading which she may deem fit under the circumstances."

Given this opportunity to act on the belatedly-furnished affidavits, the petitioner simply chose to file a
"Manifestation" where she took the position that "The order of the Ombudsman dated 17 January
2003 supplying her with the affidavits of the complainant does not cure the 04 November 2002
order," and on this basis prayed that the Ombudsmans decision "be reconsidered and the complaint
dismissed for lack of merit."
For her part, the private respondent filed a Comment/Opposition to Motion for Reconsideration dated
27 January 2003 and prayed for the denial of the petitioners motion.

In the February 12, 2003 Order, the Ombudsman denied the petitioners motion for reconsideration
after finding no basis to alter or modify its ruling. Significantly, the Ombudsman fully discussed in this
Order the due process significance of the petitioners failure to adequately respond to the belatedly-
furnished affidavits. The Ombudsman said:

"Undoubtedly, the respondent herein has been furnished by this Office with copies of the affidavits,
which she claims she has not received. Furthermore, the respondent has been given the opportunity
to present her side relative thereto, however, she chose not to submit countervailing evidence
orargument. The respondent, therefore (sic), cannot claim denial of due process for purposes of
assailing the Decision issued in the present case. On this score, the Supreme Court held in the case
of People v. Acot, 232 SCRA 406, that "a party cannot feign denial of due process where he had the
opportunity to present his side". This becomes all the more important since, as correctly pointed out
by the complainant, the decision issued in the present case is deemed final and unappealable
pursuant to Section 27 of Republic Act 6770, and Section 7, Rule III of Administrative Order No. 07.
Despite the clear provisions of the law and the rules, the respondent herein was given the
opportunity not normally accorded, to present her side, but she opted not to do so which is evidently
fatal to her cause." [emphasis supplied].

Under these circumstances, we cannot help but recognize that the petitioners cause is a lost one,
not only for her failure to exhaust her available administrative remedy, but also on due process
grounds. The law can no longer help one who had been given ample opportunity to be heard but
who did not take full advantage of the proffered chance.45

Ruivivar applies with even greater force to the present Petition because here the affidavits of Sen.
Estradas co-respondents were furnished to him beforethe Ombudsman rendered her 4 June 2014
Joint Order. In Ruivivar, the affidavits were furnished after the Ombudsman issued a decision.

Justice Velascos dissent cites the cases of Tatad v. Sandiganbayan46 (Tatad) and Duterte v.
Sandiganbayan47(Duterte) in an attempt to prop up its stand. A careful reading of these cases,
however, would show that they do not stand on all fours with the present case. In Tatad, this Court
ruled that "the inordinate delay in terminating the preliminary investigation and filing the information
[by the Tanodbayan] in the present case is violative of the constitutionally guaranteed right of the
petitioner to due process and to a speedy disposition of the cases against him."48 The Tanod bayan
took almost three years to terminate the preliminary investigation, despite Presidential Decree No.
911s prescription of a ten-day period for the prosecutor to resolve a case under preliminary
investigation. We ruled similarly in Duterte, where the petitioners were merely asked to comment
and were not asked to file counter-affidavits as isthe proper procedure in a preliminary investigation.
Moreover, in Duterte, the Ombudsman took four years to terminate its preliminary investigation.

As we follow the reasoning in Justice Velascos dissent, it becomes more apparent that Sen.
Estradas present Petition for Certiorari is premature for lack of filing of a motion for reconsideration
before the Ombudsman. When the Ombudsman gave Sen. Estrada copies of the counter-affidavits
and even waited for the lapse of the given period for the filing of his comment, Sen. Estrada failed to
avail of the opportunity to be heard due to his own fault. Thus, Sen. Estradas failure cannot in any
way be construed as violation of due process by the Ombudsman, much less of grave abuse of
discretion. Sen. Estrada has not filed any comment, and still chooses not to.

Third. Sen. Estradas present Petition for Certiorari constitutes forum shopping and should be
summarily dismissed.
In his verification and certification of non-forum shopping in the present petition filed on 7 May 2014,
Sen. Estrada stated:

3.1 I, however, disclose that I have filed a Motion for Reconsideration dated 07 April 2014 in OMB-C-
C-13-0313 and OMB-CC-13-0397, raising as sole issuethe finding of probable cause in the Joint
Resolution dated 28 March 2014.

Such Motion for Reconsideration has yet to be resolved by the Office of the
Ombudsman.49 (Emphasis supplied)

Sen. Estradas Motion for Reconsideration of the 28 March 2014 Joint Resolution prayed that the
Ombudsman reconsider and issue a new resolution dismissing the charges against him. However, in
this Motion for Reconsideration, Sen. Estrada assailed the Ombudsmans 27 March 2014 Joint
Order denying his Request, and that such denial is a violation of his right to due process.

8. It is respectfully submitted that the Ombudsman violated the foregoing rule [Rule 112, Section 4 of
the Rules of Court] and principles. A reading of the Joint Resolution will reveal that various pieces of
evidence which Senator Estrada was not furnished with hence, depriving him of the opportunity to
controvert the same were heavily considered by the Ombudsman in finding probable cause to
charge him with Plunder and with violations of Section 3(e) of R.A. No. 3019.

xxxx

11. Notably, under dated 20 March 2014, Senator Estrada filed a "Request to be Furnished with
Copies of Counter-Affidavits of the Other Respondents, Affidavits of New Witnesses and Other
Filings," pursuant to the right of a respondent "to examine the evidence submitted by the
complainant which he may not have been furnished" (Section 3[b], Rule 112 of the Rules of Court),
and to "have access to the evidence on record" (Section 4[c], Rule II of the Rules of Procedure of the
Office of the Ombudsman).

However, notwithstanding the gravity of the offenses leveled against Senator Estrada and the laws
vigilance in protecting the rights of an accused, the Special Panel of Investigators, in an Order dated
27 March 2014, unceremoniously denied the request on the ground that "there is no provision under
this Offices Rules of Procedure which entitles respondent to be furnished all the filings by the other
parties x x x x." (Order dated 27 March 2013, p. 3)

As such, Senator Estrada was not properly apprised of the evidence offered against him, which were
eventually made the bases of the Ombudsmans finding of probable cause.50

The Ombudsman denied Sen. Estradas Motion for Reconsideration in its 4 June 2014 Joint Order.
Clearly, Sen. Estrada expressly raised in his Motion for Reconsideration with the Ombudsman the
violation of his right to due process, the same issue he is raising in this petition. In the verification
and certification of non-forum shopping attached to his petition docketed as G.R. Nos. 212761-62
filed on 23 June 2014, Sen. Estrada disclosed the pendency of the present petition, as well as those
before the Sandiganbayan for the determination of the existence of probable cause. In his petition in
G.R. Nos. 212761-62, Sen. Estrada again mentioned the Ombudsmans 27 March 2014 Joint Order
denying his Request.

17. Sen. Estrada was shocked not only at the Office of the Ombudsmans finding of probable cause,
which he maintains is without legal or factual basis, but also thatsuch finding of probable cause was
premised on evidence not disclosed tohim, including those subject of his Request to be Furnished
with Copiesof Counter-Affidavits of the Other Respondents, Affidavits of New Witnesses and Other
Filings dated 20 March 2014.

In particular, the Office of the Ombudsman used as basis for the Joint Resolution the following
documents

i. Alexis G. Sevidals Counter-Affidavits dated 15 January and 24 February 2014;

ii. Dennis L. Cunanans Counter-Affidavits both dated 20 February 2014;

iii. Francisco B. Figuras Counter-Affidavit dated 08 January 2014;

iv. Ruby Tuasons Counter-Affidavits both dated 21 February 2014;

v. Gregoria G. Buenaventuras Counter-Affidavit dated 06 March 2014; and

vi. Philippine Daily Inquirer Online Edition news article entitled "Benhur Luy upstages
Napoles in Senate Hearing" by Norman Bordadora and TJ Borgonio, published on 06 March
2014, none of which were ever furnished Sen. Estrada prior to the issuance of the
challenged Joint Resolution, despite written request.

xxxx

II

THE OFFICE OF THE OMBUDSMAN, IN ISSUING THE CHALLENGED JOINT RESOLUTION


DATED 28 MARCH 2014 AND CHALLENGED JOINT ORDER DATED 04 JUNE 2014, NOT ONLY
ACTED WITHOUT OR IN EXCESS OF ITS JURISDICTION OR WITH GRAVE ABUSE OF
DISCRETION AMOUNTING TO LACK OR EXCESS OF JURISDICTION, BUT ALSO VIOLATED
SEN. ESTRADAS CONSTITUTIONAL RIGHT TO DUE PROCESS OF LAW AND TO EQUAL
PROTECTION OF THE LAWS.

xxxx

2.17 x x x x

Notably, in its Joint Order dated 07 May 2014, the Office of the Ombudsman even arbitrarily limited
the filing of Sen. Estradas comment to the voluminous documents comprisingthe documents it
furnished Sen. Estrada to a "non-extendible" period offive (5) days, making it virtually impossible for
Sen. Estrada to adequately study the charges leveled against him and intelligently respond to them.
The Joint Order also failed to disclose the existence of other counter-affidavits and failed to furnish
Sen. Estrada copies of such counter-affidavits.51

Sen. Estrada has not been candid with this Court. His claim that the finding of probable cause was
the "sole issue" he raised before the Ombudsman in his Motion for Reconsideration dated 7 April
2014 is obviously false.

Moreover, even though Sen. Estrada acknowledged his receipt of the Ombudsmans 4 June 2014
Joint Order which denied his motion for reconsideration of the 28 March 2014 Joint Resolution, Sen.
Estrada did not mention that the 4 June 2014 Joint Order stated that the Ombudsman "held in
abeyance the disposition of the motions for reconsideration in this proceeding in light of its grant to
[Sen. Estrada] a period of five days from receipt of the 7 May 2014 [Joint] Order to formally respond
to the abovenamed co-respondents claims."

Sen. Estrada claims that his rights were violated but he flouts the rules himself.

The rule against forum shopping is not limited tothe fulfillment of the requisites of litis pendentia.52 To
determine whether a party violated the rule against forum shopping, the most important factor to ask
is whether the elements of litis pendentia are present, or whether a final judgment in one case will
amount to res judicatain another.53 Undergirding the principle of litis pendentia is the theory that a
party isnot allowed to vex another more than once regarding the same subject matter and for the
same cause of action. This theory is founded on the public policy that the same matter should not be
the subject of controversy in court more than once in order that possible conflicting judgments may
be avoided, for the sake of the stability in the rights and status of persons.54

x x x [D]espite the fact that what the petitioners filed wasa petition for certiorari, a recourse that in
the usual course and because of its nature and purpose is not covered by the rule on forum
shopping. The exception from the forum shopping rule, however, is true only where a petition for
certiorari is properly or regularly invoked in the usual course; the exception does not apply when the
relief sought, through a petition for certiorari, is still pending with or has as yet to be decided by the
respondent court, tribunal or body exercising judicial or quasi-judicial body, e.g., a motion for
reconsideration of the order assailed via a petition for certiorari under Rule 65, as in the present
case. This conclusion is supported and strengthened by Section 1, Rule 65 of the Revised Rules of
Court which provides that the availability of a remedy in the ordinary course of law precludes the
filing of a petition for certiorari; under this rule, the petitions dismissal is the necessary consequence
if recourse to Rule 65 is prematurely taken.

To be sure, the simultaneous remedies the petitioners sought could result in possible conflicting
rulings, or at the very least, to complicated situations, between the RTC and the Court of Appeals.
An extreme possible result is for the appellate court to confirm that the RTC decision is meritorious,
yet the RTC may at the same time reconsider its ruling and recall its order of dismissal. In this
eventuality, the result is the affirmation of the decision that the court a quo has backtracked on.
Other permutations depending on the rulings of the two courts and the timing of these rulings are
possible. In every case, our justice system suffers as this kind of sharp practice opens the system to
the possibility of manipulation; to uncertainties when conflict of rulings arise; and at least to vexation
for complications other than conflict of rulings. Thus, it matters not that ultimately the Court of
Appeals may completely agree with the RTC; what the rule on forum shopping addresses are the
possibility and the actuality of its harmful effects on our judicial system.55

Sen. Estrada resorted to simultaneous remedies by filing this Petition alleging violation of due
process by the Ombudsman even as his Motion for Reconsideration raising the very same issue
remained pending with the Ombudsman. This is plain and simple forum shopping, warranting
outright dismissal of this Petition.

SUMMARY

The Ombudsman, in furnishing Sen. Estrada a copy of the complaint and its supporting affidavits
and documents, fully complied with Sections 3 and 4 of Rule 112 of the Revised Rules of Criminal
Procedure, and Section 4, Rule II of the Rules of Procedure of the Office of the Ombudsman,
Administrative Order No. 7. Both the Revised Rules of Criminal Procedure and the Rules of
Procedure of the Office of the Ombudsman require the investigating officer to furnish the respondent
with copies of the affidavits of the complainant and affidavits of his supporting witnesses. Neither of
these Rules require the investigating officer to furnish the respondent with copies of the affidavits of
his co-respondents. The right of the respondent is only "to examine the evidence submitted by the
complainant," as expressly stated in Section 3(b), Rule 112 of the Revised Rules of Criminal
Procedure. This Court has unequivocally ruled in Paderanga that "Section 3, Rule 112 of the
Revised Rules of Criminal Procedure expressly provides that the respondent shall only have the
right to submit a counter-affidavit, to examine all other evidence submitted by the complainant and,
where the fiscal sets a hearing to propound clarificatory questions to the parties or their witnesses, to
be afforded an opportunity to be present but without the right to examine or cross-examine."
Moreover, Section 4 (a, b and c) of Rule II of the Ombudsmans Rule of Procedure, read together,
only require the investigating officer to furnish the respondent with copies of the affidavits of the
complainant and his supporting witnesses. There is no law or rule requiring the investigating officer
1w phi 1

to furnish the respondent with copies of the affidavits of his co-respondents.

In the 7 May 2014 Joint Order, the Ombudsman went beyond legal duty and even furnished Sen.
Estrada with copies of the counter-affidavits of his co-respondents whom he specifically named, as
well as the counteraffidavits of some of other co-respondents. In the 4 June 2014 Joint Order, the
Ombudsman even held in abeyancethe disposition of the motions for reconsideration because the
Ombudsman granted Sen. Estrada five days from receipt of the 7 May 2014 Joint Order to formally
respond to the claims made by his co-respondents. The Ombudsman faithfully complied with the
existing Rules on preliminary investigation and even accommodated Sen. Estrada beyond what the
Rules required. Thus, the Ombudsman could not be faulted with grave abuse of discretion. Since
this is a Petition for Certiorari under Rule 65, the Petition fails in the absence of grave abuse of
discretion on the part of the Ombudsman.

The constitutional due process requirements mandated in Ang Tibay, as amplified in GSIS, are not
applicable to preliminary investigations which are creations of statutory law giving rise to mere
statutory rights. A law can abolish preliminary investigations without running afoul with the
constitutional requirements of dueprocess as prescribed in Ang Tibay, as amplified in GSIS. The
present procedures for preliminary investigations do not comply, and were never intended to comply,
with Ang Tibay, as amplified in GSIS. Preliminary investigations do not adjudicate with finality rights
and obligations of parties, while administrative investigations governed by Ang Tibay, as amplified in
GSIS, so adjudicate. Ang Tibay,as amplified in GSIS, requires substantial evidencefor a decision
against the respondent in the administrative case.In preliminary investigations, only likelihood or
probability of guiltis required. To apply Ang Tibay,as amplified in GSIS,to preliminary investigations
will change the quantum of evidence required to establish probable cause. The respondent in an
administrative case governed by Ang Tibay,as amplified in GSIS,has the right to an actual hearing
and to cross-examine the witnesses against him. In preliminary investigations, the respondent has
no such rights.

Also, in an administrative case governed by Ang Tibay, as amplified in GSIS, the hearing officer
must be impartial and cannot be the fact-finder, investigator, and hearing officer atthe same time. In
preliminary investigations, the same public officer may be the investigator and hearing officer at the
same time, or the fact-finder, investigator and hearing officer may be under the control and
supervisionof the same public officer, like the Ombudsman or Secretary of Justice. This explains
why Ang Tibay, as amplified in GSIS, does not apply to preliminary investigations. To now declare
that the guidelines in Ang Tibay, as amplified in GSIS, are fundamental and essential requirements
in preliminary investigations will render all past and present preliminary investigations invalid for
violation of constitutional due process. This will mean remanding for reinvestigation all criminal
cases now pending in all courts throughout the country. No preliminary investigation can
proceeduntil a new law designates a public officer, outside of the prosecution service, to determine
probable cause. Moreover, those serving sentences by final judgment would have to be released
from prison because their conviction violated constitutional due process. Sen. Estrada did not file a
Motion for Reconsideration of the 27 March 2014 Order in OMB-C-C-13-0313 denying his Request,
which is the subject of the present Petition. He should have filed a Motion for R econsideration, in
the same manner that he filed a Motion for Reconsideration of the 15 May 2014 Order denying his
motion to suspend proceedings. The unquestioned rule in this jurisdiction is that certiorari will lie only
if there is no appeal or any other plain, speedy and adequate remedy in the ordinary course of law
against the acts of the public respondent.56 The plain, speedy and adequate remedy expressly
provided by law is a Motion for Reconsideration of the 27 March 2014 Order of the Ombudsman.
Sen. Estrada's failure to file a Motion for Reconsideration renders this Petition premature.

Sen. Estrada also raised in this Petition the same issue he raised in his Motion for Reconsideration
of the 28 March 2014 Joint Resolution of the Ombudsman finding probable cause. While his Motion
for Reconsideration of the 28 March 2014 Joint Resolution was pending, Sen. Estrada did not wait
for the resolution of the Ombudsman and instead proceeded to file the present Petition for Certiorari.
The Ombudsman issued a Joint Order on 4 June 2014 and specifically addressed the issue that
Sen. Estrada is raising in this Petition. Thus, Sen. Estrada's present Petition for Certiorari is not only
premature, it also constitutes forum shopping. WHEREFORE, we DISMISS the Petition for Certiorari
in G.R. Nos. 212140-41.

SO ORDERED.

G.R. Nos. 212014-15, December 06, 2016

RICHARD A. CAMBE, Petitioner, v. OFFICE OF THE OMBUDSMAN, NATIONAL BUREAU OF


INVESTIGATION, LEVITO D. BALIGOD, AND FIELD INVESTIGATION OFFICE, Respondents.

G.R. Nos. 212427-28

SENATOR RAMON "BONG" REVILLA, JR., Petitioner, v. OFFICE OF THE OMBUDSMAN, THROUGH ITS
SPECIAL PANEL OF INVESTIGATORS, NATIONAL BUREAU OF INVESTIGATION, LEVITO D.
BALIGOD, AND FIELD INVESTIGATION OFFICE, OFFICE OF THE OMBUDSMAN, Respondents.

G.R. Nos. 212694-95

SENATOR RAMON "BONG" REVILLA, JR., Petitioner, v. OFFICE OF THE OMBUDSMAN, NATIONAL
BUREAU OF INVESTIGATION, LEVITO D. BALIGOD, FIELD INVESTIGATION OFFICE OF THE
OMBUDSMAN, OFFICE OF THE SPECIAL PROSECUTOR, AND THE HONORABLE
SANDIGANBAYAN, Respondents.

G.R. Nos. 212794-95

RICHARD A. CAMBE, Petitioner, v. OFFICE OF THE OMBUDSMAN, NATIONAL BUREAU OF


INVESTIGATION, LEVITO D. BALIGOD, AND FIELD INVESTIGATION OFFICE, Respondents.

G.R. Nos. 213477-78

JOHN RAYMUND DE ASIS, Petitioner, v. CONCHITA CARPIO MORALES IN HER OFFICIAL CAPACITY
AS OMBUDSMAN, PEOPLE OF THE PHILIPPINES AND SANDIGANBAYAN, FIRST
DIVISION, Respondents.

G.R. Nos. 213532-33

RONALD JOHN LIM, Petitioner, v. CONCHITA CARPIO MORALES IN HER OFFICIAL CAPACITY AS
OMBUDSMAN, PEOPLE OF THE PHILIPPINES AND SANDIGANBAYAN, FIRST
DIVISION, Respondents.

G.R. Nos. 213536-37

JANET LIM NAPOLES, Petitioner, v. CONCHITA CARPIO MORALES IN HER OFFICIAL CAPACITY AS
OMBUDSMAN, PEOPLE OF THE PHILIPPINES AND SANDIGANBAYAN, FIRST
DIVISION, Respondents.
G.R. Nos. 218744-59

MARIO L. RELAMPAGOS, ROSARIO SALAMIDA NUEZ, LALAINE NARAG PAULE, AND MARILOU
DIALINO BARE, Petitioners, v. SANDIGANBAYAN, (FIRST DIVISION) AND PEOPLE OF THE
PHILIPPINES, Respondents.

DECISION

PERLAS-BERNABE, J.:

Before this Court are consolidated petitions1 filed by petitioners Senator Ramon "Bong" Revilla, Jr. (Sen.
Revilla), Richard A. Cambe (Cambe), Janet Lim Napoles (Napoles or Janet Napoles), John Raymund De Asis
(De Asis), and Ronald John Lim (Lim), which commonly assail the Joint Resolution2dated March 28, 2014
and the Joint Order3 dated June 4, 2014 of the Office of the Ombudsman (Ombudsman) in OMB-C-C-13-
0316 and OMB-C-C-13-0395 finding probable cause to indict them, along with several others, for the crimes
of Plunder, defined and penalized under Section 2 in relation to Section 1 (d) (1), (2), and (6) of Republic
Act No. (RA) 7080,4 as amended (one [1] count) and/or of violation of Section 3 (e) of RA 30195 (sixteen
[16] counts).

Further assailed are: (1) by Cambe,6 the Ombudsman's Joint Order7 dated March 14, 2014, which denied
Cambe's Supplemental Counter-Affidavit with Second Motion to Suspend Proceedings;8 (2) by Sen.
Revilla,9 the Ombudsman's Order10 dated May 15, 2014 which denied Sen. Revilla's Omnibus Motion11 to re-
conduct the preliminary investigation, among others; and (3) by petitioners Mario L. Relampagos
(Relampagos), Rosario Salamida Nuez (Nuez), Lalaine Narag Paule (Paule), and Marilou Dialino Bare
(Bare),12 the Resolutions dated November 13, 201413 and May 13, 201514 of the Sandiganbayan which
affirmed the finding of probable cause against them in Criminal Case Nos. SB-14-CRM-0268, 0269, 0272,
0273, 0275, 0276, 0279, and 0280.

The Facts

Petitioners are all charged as co-conspirators for their respective participations in the illegal pillaging of
public funds sourced from the Priority Development Assistance Fund (PDAF) of Sen. Revilla for the years
2006 to 2010,15 in the total amount of P517,000,000.00.16 The charges are contained in two (2) complaints,
namely: (1) a Complaint for Plunder17 filed by the National Bureau of Investigation (NBI) and Atty. Levito D.
Baligod on September 16, 2013, docketed as OMB-C-C-13-0316; and (2) a Complaint for Plunder and
violation of Section 3 (e) of RA 301918 filed by the Field Investigation Office of the Ombudsman (FIO) on
November 18, 2013, docketed as OMB-C-C-13-0395, both before the Ombudsman. Briefly stated,
petitioners were implicated for the following acts:

(a) Sen. Revilla, as Senator of the Republic of the Philippines, for authorizing the illegal utilization,
diversion, and disbursement of his allocated PDAF through his endorsement of fraudulent Non-Governmental
Organizations (NGOs) created and controlled by Napoles's JLN (Janet Lim Napoles) Corporation19 in relation
to "ghost" PDAF-funded projects,20 and for receiving significant portions of the diverted PDAF funds as his
"commission" or "kickback";21

(b) Cambe, as Chief of Staff of Sen. Revilla during the times material to this case, for processing the
utilization, diversion, and disbursement of Sen. Revilla's PDAF,22 and for personally receiving his own
"commission" or "kickback" from the diverted funds;23

(c) Napoles, as the mastermind of the entire PDAF scam, for facilitating the illegal utilization, diversion, and
disbursement of Sen. Revilla's PDAF through: (1) the commencement via "business propositions" with the
legislator regarding his allocated PDAF; (2) the creation and operation of JLN-controlled NGOs to serve as
"conduits" for "ghost" PDAF-funded projects; (3) the use of spurious receipts and liquidation documents to
make it appear that the projects were implemented by her NGOs; (4) the falsification and machinations
used in securing funds from the various implementing agencies (IAs) and in liquidating disbursements; and
(5) the remittance of Sen. Revilla's PDAF for misappropriation;24

(d) Lim and De Asis, as staff employees of Napoles, for assisting in the fraudulent processing and releasing
of the PDAF funds to the JLN-controlled NGOs25 through, among others, their designation as
c ralaw red

Presidents/Incorporators26 of JLN-controlled NGOs, namely, Kaupdanan Para sa Mangunguma Foundation,


Inc. (KPMFI)27 and Ginintuang Alay sa Magsasaka Foundation, Inc. (GAMFI),28respectively, and for
eventually remitting the PDAF funds to Napoles's control;29 and

(e) Relampagos, Nuez, Paule, and Bare (Relampagos, et al.), as employees of the Department of
Budget and Management (DBM), for participating in the misuse or diversion of Sen. Revilla's PDAF, by acting
as "contacts" of Napoles within the DBM, and thereby, assisting in the release of the Special Allotment
Release Orders (SAROs) and Notices of Cash Allocation (NCAs) covering Sen. Revilla's PDAF.30

As alleged, the PDAF scheme commences with Napoles meeting with a legislator - in this case, Sen. Revilla -
with the former giving an offer to "acquire" his PDAF allocation in exchange for a "commission" or "kickback"
amounting to a certain percentage of the PDAF.31 Upon their agreement on the conditions of the PDAF
acquisition, including the project for which the PDAF will be utilized, the corresponding IA tasked to
implement the same, and the legislator's "commission" or "kickback" ranging from 40-60% of either the
project cost or the amount stated in the SARO,32 the legislator would then write a letter addressed to the
Senate President for the immediate release of his PDAF, who in turn, will endorse such request to the DBM
for the release of the SARO.33 By this time, the initial advance portion of the "commission" would be
remitted by Napoles to the legislator.34 Upon release of the SARO, Napoles would then direct her staff -
including whistleblowers Benhur Luy (Luy), Marina Sula (Sula), and Merlina Suas (Suas) to prepare PDAF
documents containing, inter alia, the preferred JLN-controlled NGO that will be used as a "conduit" for the
implementation of the project, the project proposals of the identified NGO, and the endorsement letters to
be signed by the legislator and/or his staff, all for the approval of the legislator;35 and would remit the
remaining portion or balance of the "commission" of the legislator, which is usually delivered by her staff,
Lim and De Asis.36 Once the documents are approved, the same would be transmitted to the IA which would
handle the preparation of the Memorandum of Agreement (MOA) to be executed by the legislator's office,
the IA, and the chosen NGO.37 Thereafter, the DBM would release the NCA38 to the IA concerned, the
head/official of which, in turn, would expedite the transaction and release of the corresponding check
representing the PDAF disbursement, in exchange for a ten percent (10%) share in the project
cost.39 Among those tasked by Napoles to pick up the checks and deposit them to the bank accounts of the
NGO concerned were Luy, Suas, and De Asis.40 Once the funds are in the account of the JLN-controlled
NGO, Napoles would then call the bank to facilitate the withdrawal thereof.41 Upon withdrawal of the said
funds by Napoles's staff, the latter would bring the proceeds to the office of JLN Corporation for
accounting.42 Napoles would then decide how much will be left in the office and how much will be brought to
her residence in Taguig City. De Asis, Lim, Luy, and Suas were the ones instructed to deliver the money to
Napoles's residence.43 Finally, to liquidate the disbursements, Napoles and her staff would manufacture
fictitious lists of beneficiaries, liquidation reports, inspection reports, project activity reports, and similar
documents that would make it appear that the PDAF-funded projects were implemented when, in fact, they
were not since they were actually inexistent or, in other words, "ghost" projects.44 Under this modus
operandi, Sen. Revilla, with the help of petitioners, among others, allegedly funneled his PDAF amounting to
around P517,000,000.0045 to the JLN-controlled NGOs and, in return, received "commissions" or "kickbacks"
amounting to at least P224,512,500.0046

In the Orders dated November 19, 201347 and November 29, 2013,48 the Ombudsman directed petitioners,
along with several others, to submit their respective counter-affidavits, to which petitioners complied with,
except for Napoles and Lim.49

In his defense, Revilla filed his Counter-Affidavit dated January 16, 2014, contending that: (a) his and
Cambe's signatures in the PDAF documents were forgeries; (b) the utilization of his PDAF had "always been
regular and above-board"; (c) his involvement in the release of his PDAF is limited; and (d) there is "no
credible proof" to show that he committed said illegal acts and that conspiracy exists between him and all
the other persons involved in the PDAF scam.50

Cambe, on the other hand, filed his Counter-Affidavit dated January 20, 2014 and Supplemental Counter-
Affidavit dated March 12, 2014, maintaining that: (a) his signatures in the PDAF documents were all
forgeries; and (b) he did not receive any money from Sen. Revilla's PDAF nor connive with any of the
alleged co-conspirators to acquire ill-gotten wealth.51

For his part, De Asis filed his Counter-Affidavit dated January 16, 2014, admitting that: (a) he was an
employee of the JLN Corporation; (b) he did pick up checks for JLN-controlled NGOs; and (c) he was an
incorporator in one of the JLN-controlled NGOs; but denying that he personally benefited from the supposed
misuse of Sen. Revilla's PDAF.52

Meanwhile, Relampagos, et al., in their separate Counter-Affidavits dated December 13, 2013, contended
that: (a) there is no probable cause and factual or legal basis to indict them for the offenses charged; and
(b) the criminal complaints did not specifically mention their names as among those who allegedly
participated in the misuse of Sen. Revilla's PDAF.53

Pending resolution of the Ombudsman cases, Sen. Revilla and Cambe separately moved for the suspension
of the preliminary investigation54 on the criminal complaints, which were, however, denied by the
Ombudsman in a Joint Order55 dated January 28, 2014, holding that no prejudicial question exists to
warrant the suspension of the preliminary investigation proceedings.56

Cambe filed another motion57 to suspend proceedings of the preliminary investigation, claiming that the
filing of the criminal complaints was premature since the Commission on Audit (COA) had yet to issue an
Order of Execution in relation to the Notices of Disallowance58 (NDs) against Sen. Revilla's Office, docketed
as Special Audits Office (SAO) ND Nos. NLDC-2014-013-PDAF(07-09) to 020-PDAF(07-09). The said motion
was, again, denied by the Ombudsman in a Joint Order59 dated March 14, 2014 (March 14, 2014 Joint
Order). Thus, Cambe elevated the matter to this Court via a petition for certiorari, docketed as G.R. Nos.
212014-15.

Meantime, Sen. Revilla filed a Motion to be Furnished Copies of Motions, Pleadings, and Other Submissions
(Motion to be Furnished),60 praying that he be furnished with copies of all the counter-affidavits filed by the
parties in this case, which was denied by the Ombudsman in an Order61 dated March 11, 2014. His motion
for reconsideration62 thereof was likewise denied by the Ombudsman in an Order63 dated March 27, 2014.

Sen. Revilla likewise filed a Motion for Voluntary Inhibition (Of the Special Panel of Investigators),64which
was also denied by the Ombudsman in an Order65 dated March 7, 2014. His motion for
reconsideration66 thereof was further denied in an Order67 dated May 9, 2014.

In a Joint Resolution68 dated March 28, 2014 (March 28, 2014 Joint Resolution), the Ombudsman found
probable cause to indict, among others, petitioners Sen. Revilla, Cambe, Napoles, De Asis, and Lim of one
(1) count of Plunder,69 and all the petitioners (along with several others), except Lim, of sixteen (16) counts
of violation of Section3 (e) of RA 3019.70

The Ombudsman found that the diversion and/or misuse of Sen. Revilla's PDAF was coursed through a
complex scheme involving various participants from Sen. Revilla's Office, the DBM, the IAs, and the JLN-
controlled NGOs. The Ombudsman then went on to conclude that through the said scheme, they were able
to siphon out government funds in the aggregate amount of P517,000,000.00, with at least
P224,512,500.00 received by Sen. Revilla.71

Thus, the Ombudsman held that probable cause exists against Sen. Revilla, Cambe, Napoles, De Asis, and
Lim for Plunder, considering that: (a) Sen. Revilla was a public officer at the time material to the charges;
(b) with the help of his co-accused, who are public officers and private individuals, Sen. Revilla amassed,
accumulated, or acquired ill-gotten wealth through their intricate modus operandi as described above; and
(c) such ill-gotten wealth amounted to at least P224,512,500.00,72 way more than the threshold amount of
P50,000,000.00 required in the crime of Plunder.73

In the same manner, the Ombudsman established probable cause to indict all the petitioners (along with
several others), except Lim, for violation of Section 3 (e) of RA 3019 in light of the following: (a) Sen.
Revilla, Cambe, and Relampagos, et al. are all public officers, while private individuals Napoles and De Asis
all conspired with these public officers; (b) said public officers exhibited manifest partiality to Napoles and
her cohorts by favoring her controlled NGOs without the benefit of public bidding and without having been
authorized by an appropriation law or ordinance, as legally mandated; (c) said public officers likewise
exhibited their bad faith by unduly benefiting from the "ghost" PDAF-funded projects through the receipt of
"commissions," "kickbacks," and the like; and (d) their collective acts caused undue injury to the
government in the aggregate amount of P517,000,000.00.74

Aggrieved, all the petitioners separately moved for the reconsideration75 of the March 28, 2014 Joint
Resolution. Specifically, Sen. Revilla, in his motion for reconsideration,76 pointed out that the Ombudsman's
use of the counter-affidavits, which documents he prayed to be furnished with in his denied Motion to be
Furnished, was a grave violation of his constitutionally guaranteed right to due process.

Pending resolution of the aforesaid motions for reconsideration, the Ombudsman issued a Joint
Order77 dated May 7, 2014 granting Sen. Revilla's Motion to be Furnished, but only with respect to the
counter-affidavits of his six (6) co-respondents.78 He was also directed to file his comment thereon.
Dissatisfied, Sen. Revilla then filed an Omnibus Motion79 dated May 13,2014 praying for the: (a) partial
reconsideration of the May 7, 2014 Joint Order; (b) recall of the March 28, 2014 Joint Resolution; and (c)
re-conduct of the preliminary investigation and reconstitution of another special panel of investigators.80 The
said Omnibus Motion having been denied by the Ombudsman in an Order81 dated May 15, 2014, Sen. Revilla
elevated the matter to this Court via a petition for certiorari, docketed as G.R. Nos. 212427-28.

On June 4, 2014, the Ombudsman issued a Joint Order82 (June 4, 2014 Joint Order) denying petitioners'
motions for reconsideration for lack of merit and, thereby, affirming the March 28, 2014 Joint Resolution
with minor modifications to correct clerical errors.83 These Ombudsman's issuances led to the filing
of certiorari petitions before this Court, docketed as G.R. Nos. 212694-95, G.R. Nos. 212794-95, G.R.
Nos. 213477-78, G.R. Nos. 213532-33, and G.R. Nos. 213536-37.

Consequently, on June 6 and 9, 2014, Informations were filed by the Ombudsman before
the Sandiganbayan, charging: (a) Sen. Revilla, Cambe, Napoles, De Asis, and Lim of one (1) count of
Plunder, docketed as Criminal Case No. SB-14-CRM-0240;84 and (b) all the petitioners (along with several
others), except Lim, of sixteen (16) counts of violation of Section 3 (e) of RA 3019, docketed as Criminal
Case Nos. SB-14-CRM-0267 to 0282.85

To forestall the service of the warrant of arrest against him, Sen. Revilla filed on June 13, 2014, a Motion for
Judicial Determination of Probable Cause and Deferment and/or Suspension of Proceedings.86 Likewise,
Relampagos, et al. moved that the Sandiganbayan declare lack of probable cause against them and suspend
proceedings.87

On June 19, 2014, the Sandiganbayan issued a Resolution, finding probable cause against petitioners and
their co-accused and, thereby, issued the corresponding warrants of arrest against them.88

Thereafter, Relampagos, et al. filed an Omnibus Motion for Reconsideration of the Resolution Dated 19 June
2014 with Motion to Recall Warrants of Arrest and to Defer Arraignment.89

In a Resolution90 dated August 28, 2014, the Sandiganbayan partially granted the said motion, and
dismissed Criminal Case Nos. SB-14-CRM-0267, 0270, 0271, 0274, 0277, 0278, 0281, and 0282 in so far as
Relampagos, et al. were concerned for the reason that the SAROs pertinent to these criminal cases were not
issued or signed by Relampagos, et al., but by then DBM Secretary Rolando Andaya. However,
the Sandiganbayan ordered the prosecution to present additional evidence to establish the existence of
probable cause against them in Criminal Case Nos. SB-14-CRM-0268, 0269, 0272, 0273, 0275, 0276, 0279,
and 0280.

The dismissal of Criminal Case Nos. SB-14-CRM-0267, 0270, 0271, 0274, 0277, 0278, 0281, and 0282
against Relampagos, et al. was appealed91 by the prosecution, but was denied by the Sandiganbayan in a
Resolution92 dated November 13, 2014. In the same Resolution, the Sandiganbayan affirmed the finding of
probable cause against Relampagos, et al. in Criminal Case Nos. SB-14-CRM-0268, 0269, 0272, 0273, 0275,
0276, 0279, and 0280 on the ground that the defenses they raised were evidentiary in character.93 In
particular, the Sandiganbayan held that the issue of whether the IA's endorsement was indispensable before
the SARO can be issued is a matter of evidence to be threshed out during trial.94

Hence, Relampagos, et al. filed a motion for partial reconsideration95 citing DBM Circular Letter No. 2015-1,
s. of 2015,96 which supposedly clarified that the IAs' endorsements are no longer required before the
issuance of the corresponding SARO. The said motion was denied by the Sandiganbayan in a
Resolution97 dated May 13, 2015, pointing out that said DBM Circular was issued only after the
Ombudsman's issuance of the March 28, 2014 Joint Resolution.98 Thus, Relampagos, et al. elevated the
issue before the Court via a petition for certiorari, docketed as G.R. Nos. 218744-59.

The Issue Before This Court

The core issue in this case is whether or not the findings of probable cause against all petitioners should be
upheld.

The Court's Ruling

All petitions are bereft of merit.

I. Cambe's Motion to Suspend Proceedings.


At the outset, the Court traverses the procedural issue raised by Cambe in his petition in G.R. Nos.
212014-15. In particular, Cambe seeks to annul and set aside the Ombudsman's March 14, 2014 Joint
Order which denied his motion to suspend proceedings, arguing that the COA's issuance of an Order of
Execution is a condition precedent to the filing of the criminal complaints against him. This relates to the
twelve (12) NDs received by the Office of Sen. Revilla on January 14, 2014 and February 4, 2014 pertaining
to expenditures charged against his PDAF during the period 2007 to 2009, docketed as SAO ND Nos. TRC-
2013-016-PDAF(07-09) to 019-PDAF(07-09)99 and NLDC-2014-013-PDAF(07-09) to 020-PDAF(07-
09),100 respectively, which Cambe claims should first attain finality; otherwise, the filing of the criminal
complaints would be premature pursuant to the COA's 2009 Revised Rules of Procedure.101

The Court disagrees.

The administrative aspect of the cases against Cambe and Sen. Revilla in relation to the COA's audit is
clearly separate and distinct from the criminal aspect covering the charges of Plunder and/or of violation of
Section 3 (e) of RA 3019 against them. Hence, the incidents related to it should have no effect on the filing
of the latter. In Villaseor v. Sandiganbayan,102 this Court explained that:
[T]here are three kinds of remedies that are available against a public officer for impropriety in the
performance of his powers and the discharge of his duties: (1) civil, (2) criminal, and (3)
administrative [and that] [t]hese remedies may be invoked separately, alternately, simultaneously
or successively. Sometimes, the same offense may be the subject of all three kinds of remedies.

xxxx

It is clear, then, that criminal and administrative cases are distinct from each other. The settled rule is that
criminal and civil cases are altogether different from administrative matters, such that the first two will not
inevitably govern or affect the third and vice versa. Verily, administrative cases may proceed
independently of criminal proceedings.103
In Reyna v. COA (Reyna),104 this Court particularly declared that "[t]he criminal case filed before the Office
of the Ombudsman is distinct and separate from the proceedings on the disallowance before the COA."105

Cambe's reliance on Section 6, Rule XIII of the 2009 Revised Rules of Procedure of the COA is misplaced. As
worded, the provision only accounts for the possibility of the filing of criminal charges upon referral of the
audit findings to the Ombudsman:
Section 6. Referral to the Ombudsman. - The Auditor shall report to his Director all instances of failure or
refusal to comply with the decisions or orders of the Commission contemplated in the preceding sections.
The COA Director shall see to it that the report is supported by the sworn statement of the Auditor
concerned, identifying among others, the persons liable and describing the participation of each. He shall
then refer the matter to the Legal Services Sector who shall refer the matter to the Office of the
Ombudsman or other appropriate office for the possible filing of appropriate administrative or criminal
action.
Nowhere does the provision state any delimitation or precondition to the filing of such criminal charges. As
correctly pointed out by the Ombudsman, "an audit disallowance may not necessarily result in the imposition
of disciplinary sanctions or criminal prosecution of the responsible persons. Conversely, therefore, an
administrative or criminal case may prosper even without an audit disallowance. Verily, Rule XIII, Section 6
is consistent with the ruling in [Reyna] that a proceeding involving an audit disallowance is distinct and
separate from a preliminary investigation or a disciplinary complaint."106

In fine, the Ombudsman did not gravely abuse its discretion in promulgating its March 14, 2014 Joint Order
which denied Cambe's motion to suspend proceedings. Perforce, Cambe's petition in G.R. Nos. 212014-
15 is dismissed. That being said, the Court now proceeds to resolve the main substantive issue anent the
presence of probable cause against all petitioners.

II. Parameters of Review.

Time and again, this Court's consistent policy has been to maintain non-interference in the Ombudsman's
determination of the existence of probable cause, provided there is no grave abuse in the exercise of such
discretion. This observed policy is based not only in respect for the investigatory and prosecutory powers
granted by the 1987 Constitution to the Office of the Ombudsman, but upon practicality as well.107

Grave abuse of discretion implies a capricious and whimsical exercise of judgment tantamount to lack of
jurisdiction. The Ombudsman's exercise of power must have been done in an arbitrary or despotic manner
which must be so patent and gross as to amount to an evasion of a positive duty or a virtual refusal to
perform the duty enjoined or to act at all in contemplation of law.108

Probable cause simply means "such facts as are sufficient to engender a well-founded belief that a crime has
been committed and that respondent is probably guilty thereof. The term does not mean 'actual and positive
cause' nor does it import absolute certainty. It is merely based on opinion and reasonable
belief."109 "[T]hus, a finding based on more than bare suspicion but less than evidence that would justify a
conviction would suffice."110

In determining the elements of the crime charged for purposes of arriving at a finding of probable cause,
"only facts sufficient to support a prima facie case against the [accused] are required, not
absolute certainty."111 In this case, the petitioners were charged with the crimes of Plunder and/or
violations of Section 3 (e) of RA 3019. Plunder, defined and penalized under Section 2112 of RA 7080, as
amended, has the following elements: (a) that the offender is a public officer, who acts by himself or in
connivance with members of his family, relatives by affinity or consanguinity, business associates,
subordinates or other persons; (b) that he amasses, accumulates or acquires ill-gotten wealth through a
combination or series of overt or criminal acts described in Section 1 (d)113thereof; and (c) that the
aggregate amount or total value of the ill-gotten wealth amassed, accumulated or acquired is at least Fifty
Million Pesos (P50,000,000.00).114 On the other hand, the elements of violation of Section 3 (e)115 of RA
3019 are: (a) that the accused must be a public officer discharging administrative, judicial, or official
functions (or a private individual acting in conspiracy with such public officers); (b) that he acted with
manifest partiality, evident bad faith, or inexcusable negligence; and (c) that his action caused any undue
injury to any party, including the government, or giving any private party unwarranted benefits, advantage,
or preference in the discharge of his functions.116 In determining probable cause therefor, only a showing of
the ostensible presence of these elements is required.

It should be borne in mind that probable cause is determined during the context of a preliminary
investigation which is "merely an inquisitorial mode of discovering whether or not there is
reasonable basis to believe that a crime has been committed and that the person charged should
be held responsible for it."117 It "is not the occasion for the full and exhaustive display of the
prosecution's evidence."118 Therefore, "the validity and merits of a party's defense or accusation, as well as
the admissibility of testimonies and evidence, are better ventilated during trial proper than at the
preliminary investigation level."119 Accordingly, "owing to the initiatory nature of preliminary
investigations, the technical rules of evidence should not be applied in the course of its
proceedings."120 In this light, and as will be elaborated upon below, this Court has ruled that "probable
cause can be established with hearsay evidence, as long as there is substantial basis for crediting the
hearsay,"121 and that even an invocation of the rule on res inter alios acta at this stage of the proceedings is
improper.122

Guided by these considerations, the Court finds that the Ombudsman did not gravely abuse its discretion in
finding probable cause to indict Sen. Revilla, Cambe, Napoles, De Asis, and Lim of one (1) count of Plunder,
and all the petitioners, except Lim, of sixteen (16) counts of violation of Section 3 (e) of RA 3019.

III. Probable Cause Against Sen. Revilla.

First, in G.R. Nos. 212694-95, Sen. Revilla seeks to annul the March 28, 2014 Joint Resolution and the
June 4, 2014 Joint Order of the Ombudsman finding probable cause against him for the crimes charged,
Among others, Sen. Revilla faults the Ombudsman for allegedly disregarding his defense of forgery, and
further contends that in the absence of other competent testimony, the Ombudsman cannot consider the
whistleblowers' testimonies who purportedly were his co-conspirators in the PDAF scam, pursuant to the res
inter alios acta rule.

The petition holds no water.

The finding of probable cause against Sen. Revilla is amply supported by the evidence on record. At the
forefront are the PDAF documents, consisting of the written endorsements signed by Sen.
Revilla123 himself requesting the IAs to release his PDAF funds to the identified JLN-controlled NGOs, as well
as other documents that made possible the processing of his PDAF, e.g., the MOAs executed by the
legislator's office, the IA, and the chosen NGO. All these documents - even those not actually signed by Sen.
Revilla - directly implicate him for the crimes charged, as they were nonetheless, all issued under the
authority of his Office as Senator of the Republic of the Philippines. In Belgica v. Ochoa (Belgica),124 this
Court observed that "the defining feature of all forms of Congressional Pork Barrel would be the authority of
legislators to participate in the post-enactment phases of project implementation."125 "At its core, legislators
may it be through project lists, prior consultations or program menus - have been consistently accorded
post-enactment authority to identify the projects they desire to be funded through various Congressional
Pork Barrel allocations."126 It is through this mechanism that individual legislators, such as Sen. Revilla,
were able to practically dictate the entire expenditure of the PDAF allocated to their offices throughout the
years.

In particular, the Ombudsman details that "the NGO endorsed by the legislator would be among those
organized and controlled by Napoles. In fact, these NGOs were specifically set by Napoles for the x x x
purpose [of having the PDAF funds released]."127 Napoles's staff would then "prepare the PDAF documents
for the approval of the legislator and reflecting the preferred NGO to implement the undertaking."128 These
documents "are transmitted to the IA which, in turn, handles the preparation of the MOA relating to the
project, to be executed by the legislator's office, the IA[,] and the NGO concerned." "The projects are
authorized as eligible under the DBM's menu for pork barrel allocations. [However,] [i]t bears noting
that the NGO is directly endorsed by the legislator [and that] [n]o public bidding or negotiated
procurement [took] place."129 As such, there was a defiance of Government Procurement Policy Board
(GPPB) Resolution No. 012-2007 which states that:
4.1 When an appropriation law or ordinance specifically earmarks an amount for projects to be specifically
contracted out to NGOs, the procuring entity may select an NGO through competitive bidding or
negotiated procurement under Section 53[(j)] of the [IRR-A]. (Emphasis and underscoring supplied)
Anent Sen. Revilla's claim that his signatures in the documentary evidence presented were forged, it must
be emphasized that "the findings of the x x x prosecutor [on the issue of forgery] should be
ventilated in a full-blown trial[.] [This] is highlighted by the reality that the authenticity of a questioned
signature cannot be determined solely upon its general characteristics, or its similarities or dissimilarities
with the genuine signature. The duty to determine the authenticity of a signature rests on the judge
who must conduct an independent examination of the signature itself in order to arrive at a
reasonable conclusion as to its authenticity. [As such], Section 22 of Rule 132 of the Rules of Court
explicitly authorizes the court, by itself, to make a comparison of the disputed handwriting with writings
admitted or treated as genuine by the party against whom the evidence is offered, or proved to be
genuine."130 Accordingly, Sen. Revilla's evidence of forgery, including the findings of his purported
handwriting experts, Rogelio G. Azores (Azores)131 and Forensic Document Examiner Atty. Desiderio A.
Pagui, (Pagui)132 cannot be readily credited at this stage of the proceedings.

Besides, the Ombudsman aptly observed that Azores and Pagui admittedly used mere photocopies of the
PDAF documents in their handwriting analyses.133 In Heirs of Gregorio v. Court of Appeals,134this Court ruled
that "[w]ithout the original document containing the alleged forged signature, one cannot make a definitive
comparison which would establish forgery," and that "[a] comparison based on a mere [photo] copy or
reproduction of the document under controversy cannot produce reliable results."135 Furthermore, it may not
be amiss to state that the credibility of Azores and Pagui as handwriting experts has yet to be tested. They
still have to authenticate their findings and be subjected to cross-examination. Without a doubt, the
prosecution should also be given a chance to properly contest Azores and Pagui's findings with evidence of
its own. It could all too well present its own handwriting experts during trial to rebut such findings.

It is significant to emphasize that the Ombudsman had thoroughly passed upon the veracity of Sen. Revilla's
signatures on the PDAF documents. As explicitly stated in the March 28, 2014 Joint Resolution: "[a]t all
events, the Special Panel members, after a prima facie comparison with their naked eyes of the
questioned signatures appearing in the PDAF documents and the original signatures of [Sen.]
Revilla and Cambe in their respective counter-affidavits, opine that both sets of signatures, which
bear the same style and flourish, were written by one and the same hands."136 Verily, the
Ombudsman's own factual finding on the absence of forgery, at least for the purpose of determining
probable cause, should be regarded with utmost respect. "[F]indings of fact by the Office of the
Ombudsman are conclusive when supported by substantial evidence,"137 as in this case.

The Ombudsman's finding on the absence of forgery furthr gains credence in light of the July 20, 2011
Letter138signed by Sen. Revilla submitted to the COA (Confirmation Letter). The letter evinces on its
face that Sen. Revilla had confirmed the authenticity of his and Cambe's signatures appearing on the PDAF
documents:
After going through these documents and initial examination, it appears that the signatures and/or
initials on these documents are my signatures or that of my authorized representative.139
The Ombudsman further noted that the Confirmation Letter appeared to have originated from Sen. Revilla's
Office because it was issued Bar code/Reference No. 0-2011-13079.140

At this juncture, it deserves mentioning that while Luy indeed admitted that there were times that the
whistleblowers would forge the signatures of the legislators in the PDAF documents, he, however, explicitly
qualified that such forgeries were made "[w]ith the approval of Ms. Napoles kasi sila po ang nag-
uusap":
Sen. Escudero: Ang tanong ko, finorge or may finorge na ba kayong pirma ng senador o
congressman dahil pinepeke nga 'yong beneficiary, 'di ba, galing sa listahan ng kung sino. x x x.

Mr. Luy: With the approval of Ms. Napoles kasi sila po ang nag-uusap, mav pagkakataon po na
fino-forge po.

Sen. Escudero: May pagkakataong fino-forge [ninyo] ang pirma ng mambabatas?

Mr. Luy: Opo.141


Luy's testimony therefore explicates that although the whistleblowers would sometimes forge the legislators'
signatures, such were made with the approval of Napoles based on her prior agreement with the said
legislators. It is not difficult to discern that this authorization allows for a more expedient processing of
PDAF funds since the documents required for their release need not pass through the legislator's respective
offices. It is also apparent that this grant of authority gives the legislators room for plausible deniability: the
forging of signatures may serve as a security measure for legislators to disclaim their participation in the
event of discovery. Therefore, Luy's testimony completely makes sense as to why the legislators would
agree to authorize Napoles and her staff to forge their signatures. As such, even if it is assumed that the
signatures were forged, it does not mean that the legislators did not authorize such forgery.

The testimonies of the whistleblowers which the prosecution submitted before the Ombudsman - are, in
fact, the most integral evidence against Sen. Revilla, since they provide a detailed account on the inner
workings of the PDAF scam to which Sen. Revilla was directly involved. It should be pointed out that, of all
the Senators, only the Offices of Sen. Revilla, Sen. Juan Ponce Enrile (Sen. Enrile), and Sen. Jinggoy,
Estrada (Sen. Estrada) were explicitly implicated142 to have dealt with Napols in the plunder of their PDAF.
Also, it is apparent that whistleblowers Suas, Sula, and Luy had personal knowledge of the conspiracy since
they were employees of JLN Corporation - the epicenter of the entire PDAF operation and in their respective
capacities, were individually tasked by N&poles to prepare the pertinent documents, liquidate the financial
transactions, follow up the release of the NCAs with the DBM, and/or facilitate the withdrawal of PDAF funds
deposited in the NGOs' accounts.143

Among others, it is interesting to note that, as per Luy's testimony, Sen. Revilla was given his own
codename, same as the other involved legislators with whom Napoles transacted with:

58. T: Maaari mo bang linawin itong sinasabi mong "codename"?

S: Ang pangalan pong taong [tumanggap] ng pera ang nilalagay ko


sa voucher pero minsan po ay codename ang nilalagay ko.

59. T: Sino ang nagbigay ng "codename"?

S: Si Madame JANET LIM NAPOLES po ang nagbigay ng codename


kasi daw po ay sa gobyerno kami nagta-transact.
60. T: Maaari mo bang sabihin kung anu-ano ang mga "codenames" ng
mga ka-transact ni JANET LIM NAPOLES na pulitiko o kanilang [Chief
of Staff]?

S: Opo. "TANDA" kay Senator Juan Ponce Enrile,


"SEXY/ANAK/KUYA" kay Senator Jinggoy
Estrada, "POGI" kay Senator Bong Revilla,
"GUERERA" kay Congressman Rizalina Seachon-Lanete,
"BONJING" kay Congressman RODOLFO PLAZA,
"BULAKLAK" kay Congressman SAMUEL DANGWA,
"SUHA" kay Congressman ARTHUR
PINGOY, at "KURYENTE" kay Congressman EDGAR VALDEZ. Mayroon
pa po ibang codename nasa records ko. Sa ngayon po ay sila lang po
ang aking naalala.144
As observed by this Court in the Reyes case, "the names of the legislators to whom the PDAF shares were
disbursed x x x were identified by the use of 'codenames.' These 'codenames,' which were obviously devised
to hide the identities of the legislators involved in the scheme, were known by a select few in the JLN
Corporation,"145 such as the whistleblowers. The level of detail of the whistleblowers' narration of facts would
surely impress upon a reasonable and prudent mind that their statements were not merely contrived. In
addition, the fact that they had no apparent motive as to why Sen. Revilla, among all others, would be
drawn by the whistleblowers, into such a high-profile case of plundet should likewise be taken into account.
Further, in Reyes, this Court observed that:
[W]histleblower testimonies - especially in corruption cases, such as this - should not be condemned, but
rather, be welcomed as these whistleblowers risk incriminating themselves in order to expose the
perpetrators and bring them to justice. In Re: Letter of Presiding Justice Conrado M. Vasquez, Jr. on CA-G.R.
SP No. 103692 (Antonio Rosete, et al. v. Securities and Exchange Commission, et al.) [590 Phil. 8, 49-50
(2008)], the Court gave recognition and appreciation to whistleblowers in corruption cases, considering that
corruption is often done in secrecy and it is almost inevitable to resort to their testimonies in order to pin
down the crooked public officers.146
Sen. Revilla opposes the admission of the whistleblowers' testimonies based on the res inter alios acta rule.
However, in Reyes, citing Estrada v. Ombudsman,147 this Court had unanimously ruled that the testimonies
of the same whistleblowers against Jo Christine and John Christopher Napoles, children of Janet Napoles
who were also charged with the embezzlement of the PDAF, are admissible in evidence, considering that
technical rules of evidence are not binding on the fiscal during preliminary investigation. This Court was
unequivocal in declaring that the objection on res inter alios acta should falter:
Neither can the Napoles siblings discount the testimonies of the whistleblowers based on their invocation of
the res inter alios acta rule under Section 28, Rule 130 of the Rules on Evidence, which states that the rights
of a party cannot be prejudiced by an act, declaration, or omission of another, unless the admission is by a
conspirator under the parameters of Section 30 of the same Rule. To be sure, the foregoing rule
constitutes a technical rule on evidence which should not be rigidly applied in the course of
preliminary investigation proceedings. In Estrada, the Court sanctioned the Ombudsman's appreciation
of hearsay evidence, which would otherwise be inadmissible under technical rules on evidence, during the
preliminary investigation "as long as there is substantial basis for crediting the hearsay." This is because
"such investigation is merely preliminary, and does not finally adjudicate rights and obligations of parties."
Applying the same logic, and with the similar observation that there lies substantial basis for crediting the
testimonies of the whistleblowers herein, the objection interposed by the Napoles siblings under the
evidentiary res inter alios acta rule should falter. Ultimately, as case law edifies, "[t]he technical rules
on evidence are not binding on the fiscal who has jurisdiction and control over the conduct of a preliminary
investigation," as in this case.148 (Emphases and underscoring supplied)
Absent any countervailing reason, the rule on stare decisis149 mandates a similar application of the foregoing
ruling to this case.
In any event, even if it is assumed that the rule on res inter alios acta were to apply during preliminary
investigation, the treatment of the whistleblowers' statements as hearsay is bound by the exception
on independently relevant statements. "Under the doctrine of independently relevant statements,
regardless of their truth or falsity, the fact that such statements have been made is relevant. The hearsay
rule does not apply, and the statements are admissible as evidence. Evidence as to the making of such
statement is not secondary but primary, for the statement itself may constitute a fact in issue or be
circumstantially relevant as to the existence of such a fact."150Undoubtedly, the testimonies of the
whistleblowers are independently relevant to prove the involvement of Sen. Revilla and his coaccused in the
present controversy, considering their respective participations in the entire PDAF scam. Therefore, the
statements made by whistleblowers Suas, Sula, and Luy, who were employees of JLN Corporation and
privy to the financial transactions of Napoles concerning, among others, Sen. Revilla's PDAF, should be given
consideration as they are directly, if not circumstantially, relevant to the issue at hand.

To add, the prosecution also presented Luy's ledger entries which corroborate his testimony that Sen.
Revilla dealt with Napoles and received PDAF kickbacks. Luy's records disclose that the kickbacks amountpd
to "at least P224,512,500.00: P10,000,000.00 for 2006; P61,000,000.00 for 2007; P80,000,000.00 for
2008; P40,000,000.00 for 2009; and P33,512,500.00 for 2010."151

Relatedly, it should be clarified that the fact that Luy did not personally know Sen. Revilla or that
none of the whistleblowers personally saw anyone handing/delivering money to Sen. Revilla
does not mean that they did not personally know of his involvement. Because of their functions in
JLN Corporation as above-stated, it is evident that they had personal knowledge of the fact that Napoles
named Sen. Revilla as one of the select-legislators she transacted with. More significantly, they personally
processed the PDAF funds and documents connected with Sen. Revilla's Office, which lasted for a
considerable amount of time, i.e., four (4) years [2006-2010 as charged]. As such, their testimonies should
not be completely disregarded as hearsay.

In any case, this Court has resolved that "probable cause can be established with hearsay evidence,
as long as there is substantial basis for crediting the hearsay."152 The substantial basis for crediting
the whistleblowers' testimonies, even if so regarded as hearsay, rests on their key functions in JLN
Corporation as above-mentioned, as well as the collective evidence gathered by the prosecution tending to
support the same conclusion that Sen. Revilla and his alleged co-conspirators acted in concert to pillage his
PDAF funds.

The prosecution further submitted the affidavits of Sen. Revilla's corespondents which constitute direct
evidence that provide an account of Sen. Revilla's involvement, this time from the perspective of certain IA
officials.

Among others, National Livelihood Development Corporation Director IV Emmanuel Alexis G. Sevidal,
echoed the Ombudsman's finding that "[Sen.] Revilla, through Cambe, [was] responsible for 'identifying the
projects, determining the project costs and choosing the NGOs' which was manifested in the letters of [Sen.]
Revilla[.]"153

For his part, Technology Resource Center (TRC) Deputy, Director General Dennis L. Cunanan (Cunanan)
narrated that he met Janet Napoles sometime in 2006 or 2007. According to him, Napoles introduced herself
as "the representative of certain legislators who supposedly picked TRC as a conduit for PDAF-funded
projects"; at the same occasion, Napoles told him that "her principals were then Senate President
[Enrile], [Sen. Revilla], [and] [Sen. Estrada.]" Cunanan further averred that he "often ended up taking
and/or making telephone verifications and follow-ups and receiving legislators or their staff members," all in
connection with PDAF projects. In addition, Cunanan even conveyed that Luy would occasionally go to his
office to pressure him to expedite the release of the PDAF funds by calling the offices of the legislators
concerned.154

Cunanan's statements were furthr corroborated by TRC Department Manager III Francisco B. Figura
(Figura), wno averred that legislators would "highly recommend" NGOs/foundations as conduit implementors
and that if TRC disagreed with their recommendations, said legislators wquld feel insulted and take away
their PDAF from TRC, resulting in the latter losing the chance to earn service fees.155 According to Figura,
this set up rendered TRC officials powerless to disregard the wishes of Sen. Revilla especially on the matter
of public bidding for the PDAF projects.156

At this juncture, this Court would like to dispel the notion. that due process rights were violated when Sen.
Revilla was denied copies of the counter-affidavits of his co-respondents in the preliminary investigation
proceedings before the Ombudsman as he argues in G.R. Nos. 212427-28. This matter was already
resolved in the similar case of Estrada, where this Court said:
Both the Revised Rules of Criminal Procedure and the Rules of Procedure of the Office of the Ombudsman
require the investigating officer to furnish the respondent with copies of the affidavits of the complainant
and affidavits of his supporting witnesses. Neither of these Rules require the investigating officer to furnish
the respondent with copies of the affidavits of his [co-respondents]. The right of the respondent is only
"to examine the evidence submitted by the complainant," as expressly stated in Section 3 (b), Rule
112 of the Revised Rules of Criminal Procedure. This Court has unequivocally ruled in Paderanga that
"Section 3, Rule 112 of the Revised Rules of Criminal Procedure expressly provides that the respondent shall
only have the right to submit a counter-affidavit, to examine all other evidence submitted by the
complainant and, where the fiscal sets a hearing to propound clarificatory questions to the parties. or their
witnesses, to be afforded an opportunity to be present but without the right to examine or cross-examine."
Moreover, Section 4 (a, b and c), of Rule II of the Ombudsman's Rule of Procedure, read together, only
require the investigating officer to furnish the respondent with copies of the affidavits of the complainant
and his supporting witnesses. There is no law or rule requiring the investigating officer to furnish
the respondent with copies of the affidavits of his co-respondents.157
In any event, the Ombudsman in this case went beyond its legal duty and eventually granted Sen. Revilla's
requests to be furnished with said counter-affidavits, and even afforded him the opportunity to comment
thereto.158 Thus, there is more reason to decline his flawed claims of denial of due process. Case law
statethat the touchstone of due process is the opportunity to be heard,159 which was undeniably afforded to
Sen. Revilla in this case.

The findings of the COA in its SAO Report No. 2012-2013 (COA report)160 also buttress the finding of
probable cause against Sen.Revilla. This report presents'in detail the various irregularities in the
disbursement of the PDAF allocations of several legislators in the years 2007 to 2009, such as: (a) the IAs
not actually implementing the purported projects, and instead, directly releasing the funds to the NGOs after
deducting a "management fee," which were done at the behest of the sponsoring legislator,
including Sen. Revilla; (b) the involved NGOs did not have any track record in the implementation of
government projects, provided fictitious addresses, submitted false documents, and were selected without
any public bidding and complying with COA Circular No. 2607-001 and GPPB Resolution No. 12-2007; and
(c) the suppliers who purportedly provided supplies to the NGOs denied ever dealing with the latter.
Resultantly, the COA Report concluded that the PDAF-funded projects of Sen. Revilla were "ghost" or
inexistent.161

The findings in the COA report were further corroborated by the field verifications conducted by the Field
Investigation Office - Office of the Ombudsman (FIO) to determine whether or not Sen. Revilla's PDAF
was indeed utilized for its intended livelihood projects. In the course of investigation, it was revealed that
the mayors and municipal agriculturists, who had reportedly received livelihood assistance kits/packages,
purportedly procured through Sen. Revilla's PDAF, actually denied receiving the same and worse, were not
even aware of any PDAF-funded projects intended for their benefit. Moreover, the signatures on the
certificates of acceptance and delivery reports were forged, and in fact, the supposed beneficiaries listed
therein were neither residents of the place where they were named as such; had jumbled surnames;
deceased; or even downright fictitious. The foregoing led the FIO to similarly conclude that the purported
livelihood projects were "ghost" projects, and that its proceeds amounting to P517,000,000.00 were never
used for the same.162

Taking together all of the above-stated pieces of evidence, the COA and FIO reports tend to prima
facie establish that irregularities had indeed attended the disbursement of Sen. Revilla's PDAF and that he
had a hand in such anomalous releases, being the head of Office which unquestionably exercised operational
control thereof. As the Ombudsman correctly observed, "[t]he PDAF was allocated to him by virtue of his
position as a Senator, and therefore he exercise[d] control in the selection of his priority projects and
programs. He indorsed [Napoles's] NGOs in consideration for the remittance of kickbacks and commissions
from Napoles. Compounded by the fact that the PDAF-funded projects turned out to be 'ghost projects', and
that the rest of the PDAF allocation went into the pockets of Napoles and her cohorts, [there is probable
cause to show that] Revilla thus unjustly enriched himself at the expense and to the damage and prejudice
of the Filipino people and the Republic of the Philippines."163 Hence, he should stand trial for violation of
Section 3 (e) of RA 3019. For the same reasons, it is apparent that ill-gotten wealth in the amount of at
least P50,000,000.00 (i.e., P224,512,500.00) were amassed, accumulated or acquired through a
combination or series of overt acts stated in Section 1 of the Plunder Law. Therefore, Sen. Revilla should
likewise stand trial for Plunder.

Besides, case law holds164 that once the trial court finds probable cause, which results in the issuance of a
warrant of arrest (as the Sandiganbayan in this case, with respect to Sen. Revilla and his copetitioners165),
any question on the prosecution's conduct of preliminary investigation becomes moot.

In fine, Sen. Revilla's petitions in G.R. Nos. 212427-28 and G.R. Nos. 212694-95 are dismissed for lack
of merit.

IV. Probable Cause Against Cambe.

The same conclusion obtains with respect to the petition of Cambe in G.R. Nos. 212794-95 assailing the
Ombudsman's finding of probable cause against him, as well as its failure to furnish him copies of his co-
respondents' counter-affidavits.

The above-discussed pieces of evidence are all equally significant to establish probable cause against
Cambe. There is no dispute that Ca:mbe was Sen. Revilla's trusted aide, being his Chief of Staff. By such
authority, he also exercised operational control over the affairs of Sen. Revilla's office, including the
allocation of his PDAF. In fact, Cambe's signatures explicitly appear on several PDAF documents, such as the
MOAs allowing the IAs to transfer Sen. Revilla's PDAF funds allocated for certain projects to various JLN-
controlled NGOs.166

Moreover, Cambe was personally identified by the whistleblowers to have received PDAF money for himself
and for Sen. Revilla. As recounted by Luy, Cambe was the one who would go to Napoles's office and receive
cash from the latter in the aggregate amount of P224,512,500.00 representing Sen. Revilla's "commissions"
or "kickbacks" coming from the PDAF scam. The cash would come either from Luy's vault or from Napoles
herself.167 In simple terms, Cambe allegedly acted as a liaison between Sen. Revilla and Napoles.

For the same reasons above-discussed, there should be no valid objection against the appreciation of the
PDAF documents and whistleblowers' testimonies as evidence to establish probable cause against Cam be at
this stage of the proceedings. He also has no right to be furnished copies of the counter-affidavits ,of his co-
respondents. Thus, this Court holds that Cambe should likewise stand trial for the crimes charged, and his
petition in G.R. Nos. 212014-15 be dismissed.

V. Probable Cause Against Napoles.

In G.R. Nos. 213536-37, Janet Napoles similarly seeks to nullify the Ombudsman's March 28, 2014 Joint
Resolution and June 4, 2014 Joint Order finding probable cause against her for Plunder and for violation of
Section 3 (e) of RA 3019. Essentially, she argues that the complaints did not establish the specific acts of
the crimes she supposedly committed. She likewise contends that since she is not a public officer, she
cannot be subjected to prosecution by the Ombudsman before the Sandiganbayan.

Napoles's arguments are untenable.

Records clearly show that Napoles, in all reasonable likelihood, played an integral role in the illegal
utilization, diversion, and disbursement of Sen. Revilla's PDAF. In fact, she was tagged as the mastermind of
the entire PDAF scam. As outlined by the Ombudsman, Napoles would approach legislators, such as Sen.
Revilla, and "offer to 'acquire' his x x x PDAF allocation in exchange for a 'commission' or kickback
amounting to a certain percentage of the PDAF."168 Once Napoles was informed of the availability of Sen
Revilla's PDAF, she and/or her staff would prepare listings of the available projects specifically indicating the
IAs which would carry out the same. After the listings are released by Sen. Revilla's Office, Napoles would
then give a down payment from her own pockets for delivery to Sen. Revilla, or in case of his unavailability,
to Cambe who would receive the same on Sen. Revilla's behalf. Once the SARO and/or the NCA regarding
said project is released, Napoles would then deliver the promised "kickbacks" to Sen. Revilla. Thereafter,
Sen. Revilla and/or Cambe would endorse Napoles's NGOs to undertake the PDAF-funded projects, all of
which turned out to be "ghost" or "inexistent;" thus, allowing Napoles and her cohorts to pocket the PDAF
allocation.169

Based on the evidence in support thereof such as the PDAF documents, whistleblowers' testimonies, the
accounts of the IA officials, and the COA report, as well as the field verifications of the FIO, Ombudsman,
this Court is convinced that there lies probable cause against Janet Napoles for the charge of Plunder as it
has been prima facie established that she, in conspiracy with Sen. Revilla, Cambe, and other personalities,
was significantly involved in the afore-described modus operandi to obtain Sen. Revilla's PDAF amounting to
at least P50,000,000.00 in "kickbacks." In the same manner, there is probable cause against Napoles for
violations of Section 3 (e) of RA 3019, as it is ostensible that their conspiracy to illegally divert PDAF Funds
to "ghost" projects caused undue prejudice to the government.

That a private individual, such as Napoles, could not be charged for Plunder and violations of Section 3 (e)
of RA 3019 because the offenders in those crimes are public officers is a complete misconception. It has
been long-settled that while the primary offender in the aforesaid crimes are public officers, private
individuals may also be held liable for the same if they are found to have conspired with said officers
in committing the same. This proceeds from the fundamental principle that in cases of conspiracy, the act
of one is the act of all.170 In this case, since it appears that Napoles has acted in concert with public officers
in the systematic pillaging of Sen. Revilla's PDAF, the Ombudsman correctly indicted her as a co-conspirator
for the aforementioned crimes.

Thus, Napoles's petition in G.R. Nos. 213536-37 is dismissed.

VI. Probable Cause Against De Asis.

In G.R. Nos. 213477-78, De Asis accuses the Ombudsman of gravely abusing its discretion in finding
probable cause against him for Plunder and violations of Section 3 (e) of RA 3019, contending, inter alia,
that the performance of his functions as driver and messenger of Napoles hardly constitutes overt acts of
the aforesaid crimes or a willful participation thereof. In this regard, he asserts that as a mere high school
graduate and former security guard, it is highly unimaginable for him to conspire with his employer and
other high-ranking government officials to commit the aforesaid crimes.

The petition has no merit.

Records show that De Asis was designated as the President/Incorporator171 of KPMFI which was one of the
many NGOs controlled by Napoles that was used in the embezzlement of Sen. Revilla's PDAF
allocations.172 Moreover, whistleblowers Luy and Suas explicitly n,amed De Asis as one of those who
prepared money to be given to the lawmaker.173 Said whistleblowers even declared that De Asis, among
others, rec ived the checks issued by the IAs to the NGOs and deposited the same in the bank; and that,
after the money is withdrawn from the bank, he was also one of those tasked to bring the money to Janet
Napoles's house.174 Indeed, the foregoing prove to be well-grounded bases to believe that, in all probability,
De Asis conspired with the other co-accused to commit the crimes charged.

To refute the foregoing allegations, De Asis presented defenses which heavily centered on his perceived
want of criminal intent, as well as the alleged absence of the elements of the crimes charged. However, such
defenses are evidentiary in nature, and thus, are better ventilated during trial and not during preliminary
investigation. To stress, a preliminary investigation is not the occasion for the full and exhaustive display of
the prosecution's evidence; and the presence or absence of the elements of the crime is evidentiary in
nature and is a matter of defense that may be passed upon only after a full-blown trial on the merits.175

In sum, the Ombudsman did not gravely abuse its discretion in finding probable cause to indict De Asis for
the crimes charged. Consequently, his petition in G.R. Nos. 213477-78 is dismissed.

VII. Probable Cause Against Lim.

In G.R. Nos. 213532-33, Lim argues that the Ombudsman. gravely abused its discretion in finding
probable cause against him for Plunder. According to him, the criminal complaints do not allege a specific
action he committed that would demonstrate his involvement for the crime charged.

Lim's contention is without merit.

As correctly pointed out by the Ombudsman, whistleblowers Luy and Suas narrated that over the course of
the perpetuation of the PDAF scam, they, along with the other staff of Napoles - which includes Lim - would
prepare, and thereafter deliver, the kickbacks intended for Sen. Revilla.176 The preparation and delivery of
kickbacks to the legislator and/or his trusted staff are indeed overt acts that relate to his involvement in the
PDAF scheme. To note, even if it is assumed that Lim only prepared the money and did not deliver the same
as he claims,177 the act of preparation is still connected to the common objective of the conspiracy.
Accordingly, this establishes the existence of probable cause against him for thb crime charged. Hence, his
petition in G.R. Nos. 213532-33 is likewise dismissed.

VIII. Probable Cause Against Relampagos, et al.


Meanwhile, in G.R. Nos. 218744-59, DBM employees Relampagos, Nuez, Paule, and Bare assail the
Sandiganbayan Resolutions dated November 13, 2014178 and May 13, 2015179 which judicially found
probable cause against them for eight (8) counts of violation of Section 3 (e) of RA 3019, thereby affirming
the Ombudsman's earlier finding of probable cause against them (at least for the said eight [8] counts that
were affirmed). In particular, they argue that: (a) they cannot be faulted for issuing the SAROs without prior
IA endorsement as it was authorized under the General Appropriations Acts (GAAs) for the years 2007 to
2009; and (b) there was no "undue haste" in the issuance of the said SAROs as the DBM itself prescribes
shorter periods in the processing of the same.180

Relampagos, et al.'s arguments fail to persuade.

As pointed out by the Ombudsman and the Sandiganbayan, some of the SAROs and NCAs issued in the
perpetuation of the PDAF scam were issued by the Office of Relampagos as DBM Undersecretary, where
Nuez, Paule, and Bare are all working - a finding that they themselves did not dispute.181More significantly:
(a) whistleblower Luy positively identified Relampagos, et al. as Napoles's "contact persons" in
the DBM; and (b) the COA Report found irregularities in their issuances of the aforesaid SAROs and
NCAs.182 Ostensibly, these circumstances show Relampagos et al.'s manifest partiality and bad faith in favor
of Napoles and her cohorts that evidently caused undue prejudice to the Government. Thus, they must
stand trial for violation of Section 3 (e) of RA 3019.

As to their contentions that there was no "undue haste" in the issuance of the said SAROs as the GAAs for
the years 2007 to 2009 authorized such issuances even without prior IA endorsement and that the DBM
itself prescribes a shorter processing time for the same, suffice it to say that these are matters of defense
that are better ventilated in a full-blown trial. The timing of the SARO releases by these DBM officials, as
well as any deviations from legal procedure are but part of a multitude of factors to be threshed out during
trial in order to determine their exact culpability. Verily, the confines of a preliminary investigation do not
yet allow a full exposition of the parties' claims. Relampagos, et al.'s petition in G.R. Nos. 218744-59 is
therefore dismissed.

Conclusion

Case law states that "the Ombudsman's finding of probable cause does not touch on the issue of guilt or
innocence of the accused. It is not the function of the Office of the Ombudsman to rule on such issue. All
that the Office of the Ombudsman did was to weigh the evidence presented together with the counter-
allegations of the accused and determine if there was enough reason to believe that a crime has been
committed and that the accused are probably guilty thereof."183 In the review of the Ombudsman's
determination of probable cause, we are guided by this Court's pronouncement in Vergara v.
Ombudsman,184 where it was ruled that:
[C]ourts do not interfere in the Ombudsman's exercise of discretion in determining probable cause unless
there are compelling reasons. The Ombudsman's finding of probable cause, or lack of it, is entitled to great
respect absent a showing of grave abuse of discretion. Besides, to justify the issuance of the writ
of certiorari on the ground of abuse of discretion, the abuse must be grave, as when the power is exercised
in an arbitrary or despotic manner by reason of passion or personal hostility, and it must be so patent as to
amount to an evasion of a positive duty or to a virtual refusal to perform the duty enjoined, or to act at all,
in contemplation of law, as to be equivalent to having acted without jurisdiction.185
Meanwhile, with respect to the Sandiganbayan's judicial determination of probable cause, this Court,
in Delos-Santos Dio v. Court of Appeals,186 enlightens that:
[A] judge's discretion to dismiss a case immediately after the filing of the information in court is appropriate
only when the failure to establish probable cause can be clearly inferred from the evidence presented and
not when its existence is simply doubtful. After all, it call)lot be expected that upon the filing of the
information in court the prosecutor would have already presented all the evidence necessary to secure a
conviction of the accused, the objective of a previously-conducted preliminary investigation being merely to
determine whether there is sufficient ground to engender a well-founded belief that a crime has been
committed and that the respondent is probably guilty thereof and should be held for trial.187
In this case, the Ombudsman (and the Sandiganbayan as to Relampagos, et al.) did not err in finding
probable cause against all the petitioners. Their findings are fully supported by the evidence on record and
no semblance of misapprehension taints the same. Moreover, this Court cannot tag key documentary
evidence as forgeries and bar testimonies as hearsay at this stage of the proceedings; otherwise, it would
defy established principles and norms followed during preliminary investigation. Jurisprudence teaches us
that "[i]n dealing with probable cause[,] athe very name implies, we deal with probabilities. These are not
technical; they are the factual and practical considerations of everyday life on which reasonable and prudent
men, not legal technicians, act. The standard of proof is accordingly correlative to what must be
proved."188 Overall, based on the foregoing disquisitions, the standard of probable cause was adequately
hurdled by the prosecution in this case. As such, no grave abuse of discretion was committed by the
Ombudsman and the Sandiganbayan in the proceedings a quo. All the petitioners should therefore stand
trial for the crimes they were charged.

WHEREFORE, the petitions are DISMISSED for lack of erit. The findings of probable cause against all
petitioners are hereby AFFIRMED and the Sandiganbayan, as trial court, is DIRECTED to
commence/continue with the necessary proceedings in these cases with deliberate dispatch.

SO ORDERED. cralawlawlibra ry

CONCURRING AND DISSENTING OPINION

VELASCO, JR., J.:

I concur with the majority in sustaining the finding of probable cause against Janel Lim Napoles (Napoles),
Ronald John Lim (Lim) and John Raymund de Asis (De Asis).

I, however, dissent from the majority's conclusion that there is probable cause to indict Sen. Ramon "Bong"
Revilla, Jr. (Revilla), Richard A. Cambe (Cambe), Mario L. Relampagos (Relampagos), Rosario S. Nuez
(Nuez), Lalaine N. Paule (Paule) and Marilou D. Bare (Bare).

FACTUAL ANTECEDENTS

As culled from the Joint Resolution dated March 28, 2014 issued by the Ombudsman in OMB-C-C13-0316
and OMB-C-C-13-0395, the issuance that has invariably spawned the consolidated special civil actions at
bar, the relevant factual antecedents are as follows:

On March 22, 2013, National Bureau of Investigation (NBI) agents rescued Benhur Luy (Luy) who would
claim having been illegally detained in connection with the discharge of his responsibilities as the "lead
employee" of the Janet Lim Napoles Corporation (JLN). JLN was supposedly involved in overseeing the
anomalous implementation of several projects funded from the Priority Development Assistance Fund
(PDAF).

The NBI's investigation that followed focused on the adverted irregularities surrounding the PDAF of certain
lawmakers, acting in connivance with individuals in and out of govermnent and nongovermnental
organizations (NGOs). Interviewed during the probe,were Luy and other JLN employees, Marina Sula (Sula)
and Merlina Suas (Suas).

After its investigation, the NBI filed with the Office of the Ombudsman (OOMB) a complaint, docketed as
OMB-C-C-13-0316 (the NBI complaint), charging, inter alia, the herein petitioners, namely: 1) Sen. Ramon
"Bong" Revilla, Jr. (Revilla); 2) Richard A. Cambe, a member of his Senate staff; 3) Janet Lim Napoles
(Napoles); 4) Ronald John B. Lim (Lim); 5) John Raymund S. De Asis (De Asis); and 6) Mario L. Relampagos
(Relampagos), Rosario S. Nuez (Nuez), Lalaine N. Paule (Paule) and Marilou D. Bare (Bare) with Plunder.
Thereat, the NBI alleged that Revilla, through Cambe, received a total of P224,512,500.00 from Napoles for
supposedly allowing the latter to divert Revilla's PDAF from 2006 to 2010 to her controlled non-
governmental organizations (NGOs) with the help of the other respondents therein.

Based on similar allegations, the Field Investigation Office (FIO) of the OOMB thereafter filed another
complaint for violation of Sec. 3(e) of the Anti-Graft and Corrupt Practices Act against, among other
individuals, Revilla, Napoles, Cambe, and De Asis (FIO Complaint).

Docketed as OMB-C-C-13-0395, the FIO Complaint cites COA (Commission on Audit) SAO (Special Audits
Office) Report No. 2012-03, on PDAF allocations and disbursements covering 2007-2009. Mentioned in the
FIO Complaint are supposed letters from COA to Revilla and vice versa, bearing on the authenticity of his
signature or Cambe's appearing on the documents appended to the letter, i.e., letters to the head of
Implementing Agencies (IAs), memoranda of agreement (MOA), and project proposals,
inspection/acceptance/disbursement papers relating to his PDAF. ("PDAF Documents").

In separate or joint counter-affidavits submitted in compHance with the OOMB orders, the above-named
respondents, proferred the following defenses or inculpatory statements, the gist of which are as
summarized below. Other related incidents are as indicated.

1. Relampagos, Nuez, Paule, and Bare, who were identified by Luy as Napoles' "contacts" in the
Department of Budget and Management (DBM) who helped expedite the release of the Special Allotment
Release Orders (SAROs) relating to the PDAF, alleged they are not mentioned in the NBI Complaint as
participants in the PDAF misuse.

2. De Asis admits that, as employee of JLN Group from 2006-2010, serving as driver/bodyguard/messenger
for Napoles he used, per her instructions, to pick up checks for Napoles-affiliated government organizations.
But he denies having any knowledge in setting-up or managing firms that supposedly received PDAF.

3. As in his later pleadings and submissions, Revilla alleged that his or Cambe's signatures in the PDAF
Documents thus submitted by the NBI and the FIO are all forgeries as shown in the independent and
separate reports of two handwriting experts, Atty. Desiderio Pagni and Mr. Rogelio Azores. Sen. Revilla drew
attention to the fact that not one of complainants' witnesses testified about his receipt of money as kickback
or commission from Napoles. He stressed that the complainants have neither identified the "overt act" of the
crimes he committed nor the so-called ill-gotten wealth he has allegedly accumulated. Revilla rued the lack
of admissible proof to svpport the contentions that he conspired with Napoles and her employees.

Revilla would stress too that his limited involvement in the PDAF release started and ended with his letter to
the Senate President and a Senate committee identifying the projects for his PDAF.

4. Cambe denies, as he would later deny, any involvement in the PDAF scam or in the conspiracy involving
the PDAF. He tagged as forgeries his purported signature appearing in certain PDAF documents. He would
echo Revilla's line on the absence in the complaints of averments of the "overt or criminal acts" constitutive
of Plunder case filed against him.

Napoles, Lim, and five others opted not to file their counter-affidavits.

In related moves, Revilla and Cambe sought the suspension of the preliminary investigation on the NBI and
FIO complaints, pleading that a civil case previously filed to nullify the PDAF Documents presents a
prejudicial question to the criminal proceedings. In the Joint Order dated January 28, 2014, as later
reiterated, however, the Ombudsman denied the motions holding that the desired suspension is
unwarranted, falsification not being an essential element of either crime involved, besides which there are
other pieces of evidence in support of the complaints thus filed.

Raising an entirely distinct issue, Cambe filed a second motion to suspend proceedings on the ground that
the filing of the criminall cases is premature. He argued that non-compliance with the COA Order of
Execution (COE) is a pre-condition or a condition precedent to the filing of the charges against him.
However, the Ombudsman denied this second motion in its Joint Order dated March 14, 2014, now being
challenged in G.R. Nos. 212014-15.

On February 11, 2014, Revilla interposed a Motion to be Furnished Copies of Motions, Pleadings, and other
Submissions filed in relation to the criminal complaints against him including the Counter-Affidavits of the
other respondents ("Motion to be Furnished"). By Order of March 11, 2014, the Ombudsman denied the
motion. Another Order of March 27, 2014 would deny Revilla's motion for reconsideration.

Revilla's subsequent Motion for Voluntary Inhibition (Of the Special Panel of Investigators) met the same
adverse fate. So did his motion for motion for reconsideration of the denial order.

The Ombudsman's March 28,2014 Joint Resolution

By Joint Resolution of March 28, 2014, the Ombudsman found probable cause to charge Revilla and the
other petitioners, with plunder and violation of Sec. 3(e) of RA 3019, pertinently disposing in this wise -
WHEREFORE, this Office, through the undersigned:

(a) FINDS PROBABLE CAUSE to indict:

[PLUNDER - 1 Count]

i. Ramon Revilla, Jr., Richard A. Cambe, Janet Lim Napoles, Ronald John Lim and John Raymund de Asis,
acting in concert, for PLUNDER (Section 2 in relation to Section 1(d)[d] [2] and [6] of R.A. No. 7080; as
amended), in relation to Revilla's ill-gotten wealth in the sum of at least PHP[224],512,500.00, representing
kickbacks or commissions received by him from Napoles in connection with [PDAF]-funded government
projects and by reason of his office or position;

[VIOLATION OF SECTION 3 (E) OF R.A. 3019 - 16 Counts]

i. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagos, Rosario Nuez, Lalaine Paule, Marilou Bare,
x x x Janet Lim Napoles, x x x John Raymund De Asis x x x acting in concert, for VIOLATION OF SECTION 3(E)
OF R.A. NO. 3019 in relation to fund releases amounting to at least PHP25,000,000.00 drawn from Revilla's
PDAF and cour ed through the [TRC] and Agri Economic Program for Farmers Foundation, Inc. (AEPFFI), as
reflected in [DV] x x x;

ii. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagbs, Rosario Nuez, Lalaine Paule, Marilou Bare,
x x x, Janet Lim Napoles, x x x John Raymund De Asis, Eulogio D. Rodriguez, and Laarni A. Uy, acting in
concert, for VIOLATION OF SECTION 3(E) OF R.A. NO. 3019 in relation to fund releases amounting to at least
PHP38,500,000.00 drawn from Revilla's PDAF and coursed through the [TRC] and Philippine Social
Development Foundation, Inc. (PSDFI), as reflected in DV No. x x x;

iii. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagos, Rosario Nuez, Lalaine Paule, Marilou Bare,
x x x Janet Lim Napoles, x x x John Raymund De Asis, x x x acting in concert, for VIOLATION 0F SECTION
3(E) OF R.A. NO. 3019 in relation to fund releases amounting to at least PHP11,640,000.00 drawn from
Revilla's PDAF and coursed through the [NABCOR] and Masaganang Ani Para sa Magsasaka Foundation, Inc.
(MAMFI), as reflected in DV No. x x x;

iv. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagos, Rosario Nuez, Lalaine Paule, Marilou Bare,
x x x, Janet Lim Napoles x x x John Raymund De Asis, x x x acting in concert, for VIOLATION (i)F SECTION
3(E) OF R.A. NO. 3019 in relation to fund releases amounti g to at least PHP24,250,000.00 drawn from Revilla's
PDAF and coursed through the NABCOR and MAMFI, as reflected x x x;

v. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagos, Rosario Nuez, Lalaine Paule, Marilou Bare
x x x, Janet Lim Napoles x x x, John Raymund De Asis, Eulogio D. Rodriguez, x x x acting in concert, for
VIOLATION OF SECTION 3(E) OF R.A. NO. 3019 in relation to fund releases amounting to at least
PHP38,800,000.00 drawn from Revilla's PDAF and coursed through the NABCOR and x x x (SDPFFI), as
reflected in DV No. x x x;

vi. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagos, Rosario Nuez, Lalaine Paule, Marilou Bare,
x x x Janet Lim Napoles x x x, John Raymund De Asis, x x x acting in concert, for VIOLATION OF SECTION
3(E) OF R.A. NO. 3019 in relation to fund releases amounting to at least PHP14,550,000.00 drawn from
Revilla's PDAF and coursed through the NABCOR and MAMFI, as reflected in DV No. x x x;

vii. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagos, Rosario Nuez, Lalaine Paule, Marilou
Bare, x x x, Janet Lim Napoles, x x x John Raymund De Asis, x x x acting in concert, for VIOLATION OF
SECTION 3(E) OF RA. NO. 3019 in relation to fund releases amounting to at least PHP44,000,000.00 drawn
from Revilla's PDAF and coursed through the TRC and SDPFFI, as reflected in x x x;

viii. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagos, Rosario Nuez, Lalaine Paule, Marilou
Bare, x x x Janet Lim Napoles, x x x John Raymund De Asis, Eulogio D. Rodriguez, x x x acting in concert, for
VIOLATION OF SECTION 3(E) OF R.A. NO. 3019 in relation to fund releases amounting to at least
PHP44,000,000.00 drawn from Revilla's PDAF and coursed through the TRC and SDPFFI, as reflected in DV
Nos. x x x;

ix. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagos, Rosario Nuez, Lalaine Paule, Marilou Bare,
x x x Janet Lim Napoles, x x x John Raymund De Asis, x x x acting in concert, for VIOLATION OF SECTION
3(E) OF R.A. NO. 3019 in relation to fund releases amounting to at least PHP[19,400,000.00] drawn from
Revilla's PDAF and coursed through the [NLDC] and x x x (APMFI), as reflected in DV No. x x x;

x. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagos, Rosario Nuez, Lalaine Paule, Marilou Bare,
x x x Janet Lim Napoles, x x x John Raymund De Asis, x x x acting in concert, for VIOLATION OF SECTION
3(E) OF RA. NO. 3019 in relation to fund releases amounting to at least PHP30,000,000.00 drawn from Revilla's
PDAF and coursed through the NLDC and MAMFI, as reflected in DV No. x x x;

xi. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagos, Rosario Nuez, Lalaine Paule, Marilou Bare,
x x x Janet Lim Napoles, x x x John Raymund De Asis, x x x acting in concert, for VIOLATION OF SECTION
3(E) OF R.A. NO. 3019 in relation to fund releases amounting to at least PHP40,000,000.00 drawn from
Revilla's PDAF and coursed through the NLDC and MAMFI, as reflected in DV Nos. x x x;

xii. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagos, Rosario Nuez, Lalaine Paule, Marilou
Bare, x x x Janet Lim Napoles, x x x John Raymund De Asis, x x x acting in concert, for VIOLATION OF
SECTION 3(E) OF RA. NO. 3019 in relation to fund releases amounting to at least PHP44,000,000.00 drawn
from Revilla's PDAF and coursed through the NLDC and AEPFFI, as reflected in DV No. x x x;

xiii. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagos, Rosario Nuez, Lalaine Paule, Marilou
Bare, x x x Janet Lim Napoles, x x x John Raymund De Asis, x x x acting in concert, for VIOLATION OF
SECTION 3(E) OF R.A. NO. 3019 in relation to fund releases amounting to at least PHP36,000,000.00 drawn
from Revilla's PDAF and coursed through the NLDC and APMFI, as reflected in DV No. x x x;

xiv. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagos, Rosario Nuez, Lalaine Paule, Marilou
Bare, x x x Janet Lim Napoles, x x x John Raymund De Asis, x x x acting in concert, for VIOLATION OF
SECTION 3(E) OF R.A. NO. 3019 in relation to fund releases amounting to at least PHP20,000,000.00 drawn
from Revilla's PDAF and coursed through the NLDC and SDPFFI, as reflected in x x x;

xv. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagps, Rosario Nuez, Lalaine Paule, Marilou
Bare, x x x Janet Lim Napoles, x x x John Raymund De Asis, x x x acting in concert, for VIOLATION OF
SECTION 3(E) OF R.A. NO. 3019 in relation to fund releases amounting to at least PHP40,000,000.00 drawn
from Revilla's PDAF and coursed through the NLDC and SDPFFI, as reflected in DV No. x x x; and

xvi. Ramon M. Revilla, Jr., Richard A. Cambe, Mario L. Relampagos, Rosario Nuez, Lalaine Paule, Marilou
Bare, x x x Janet Lim Napoles, x x x John Raymund De Asis, x x x acting in concert, for VIOLATION OF
SECTION 3(E) OF R.A. NO. 3019 in relation to fund releases amounting to at least PHP45,000,000.00 drawn
from Revilla's PDAF and coursed through the NLDC and SDPFFI, as reflected in DV No. x x x;

and accordingly RECOMMENDS the immediate filing of the corresponding Informations against them with the
Sandiganbayan;

xxxx

(d) DIRECTS the [FIO] to conduct further fact-finding on the criminal, civil and/or administrative liability of
Javellana, Mendoza, Ortiz, Cunanan, Amata, Sevidal and other respondents who may have received
commissions and/or kickbacks from Napoles in relation to their participation in the scheme subject of these
proceedings.
In so holding, the Ombudsman found the existence of conspiracy between and among the petitioners, the
officers of the IAs and the DBM to amass ill-gotten wealth, noting particularly in this regard that without
Revilla's involvement, Napoles could not have had access to his PDAF allocation. Wrote the Ombudsman on
the matter of conspiracy:

Based on the x x x evidence presented, the widespread misuse of the subject PDAF allotted to a legislator was
coursed through a complex scheme basically involving "ghost" or inexistent projects allegedly funded by said
PDAF. The funds intended for the implementation ofthe PDAF funded projects are diverted to the possession
and control of Napoles and her co-horts, as well as to the legislator to whom the funds were allotted and his
staff, and other participants from the government agencies tasked to implement said inexistent projects.

xxxx

Based on the records, the repeated diversions of PDAF allocated to Senator Revilla, during the period 2006 to
2010, were coursed through the above-described scheme.
In the case of Senator Revilla, the NGOs affiliated and/or controlled by Napoles that undertook to implement
the projects to be funded by his PDAF were, among others, x x x. These organizations transacted through
persons known to be employees, associates or relatives of Napoles, including witnesses Luy, Sula, and Suas,
as well as respondents x x x De Asis, x x x Lim x x x. Similarly, Cambe, acting on Senator Revilla's behalf,
prepared and executed communications with the DBM and implementing agencies, as well as other PDAF-
related papers such as MOA and project proposals.

During the time material x x x Senator Revilla issued several endorsement letters to NABCOR, TRC and NLDC,
expressly naming the above-mentioned NGOs as his chosen contractor for his PDAF projects x x x.1

xxxx

x x x [T]o repeatedly divert substantial funds from the PDAF, access thereto must be made available. This
was made possible by x x x Revilla, who chose NGOs affiliated with or controlled by Napoles to implement his
PDAF-related undertakings. Cambe then prepared the indorsement letters and similar documentation
addressed to the DBM and the [IAs] x x x to ensure that the chosen NGO will, indeed, be awarded the project.

Relampagos, [etc.], as officers ofthe DBM, were in regular contact with Napoles and her staff This familiarity
between them x x x ensured that the requisite SAROs and NCAs were immediately released by the DBM to
the concerned [IAs].

In turn, Ortiz, Cunanan, [et al.,] as officers of the [IAs] involved, prepared, reviewed, and executed the
memoranda of agreement concerning the implementation of the projects. They also participated in the
processing and approval of the PDAF disbursements to the questionable NGOs. The funds in question could
not have been transferred to these entities if not for their certifications, signatures and approvals found in the
corresponding disbursement vouchers and checks.

Once the fund releases have been successfully processed by the implementing agencies, x x x De Asis x x x
[and] Lim x x x in behalf of the NGOs in question and under the direction of Napoles, would pick up the
corresponding checks and deposit them in bank accounts under the name of these entities and over which
Napoles had complete and utter control. These sums would later be withdrawn from the banks and brought
to the offices of Napoles x x x.

x x x De Asis, x x x again per the direction of Napoles, would prepare the fictitious beneficiaries list and other
similar documents for liquidation purposes, that is, to make it appear that the projects were implemented,
when, in fact, they were not.

For their participation, in the above-described scheme, Senator Revilla, Javellana, Cunanan, Amata,
Buenaventura and Sevidal received portions of the subject PDAF disbursements from Napoles.2

xxxx

As earlier discussed, the sworn statements of witnesses, the DVs, the indorsed/encashed checks, the MOAs
with NGOs, the written requests, liquidation reports, confirmation letters and other evidence on record,
indubitably indicate that Senator Revilla, Cambe, Relampagos, Nuez, Paule, Bare, x x x as well as Napoles,
x x x De Asis x x x, Lim x x x, conspired with one another to repeatedly raid the public treasury through what
appears to be drawing funds from the PDAF allocated to Senator Revilla, albeit for fictitious projects.
Consequently, they illegally conveyed public funds in the aggregate amount of PHP517,000,000.00, more or
less, to the possession and control of questionable NGOs affiliated with Napoles, thus allowing Senator Revilla
to acquire and amass ill-gotten part of the proceeds thereof through kickbacks x x x.3
From the March 28, 2014 Joint Resolution, the petitioners timely moved for reconsideration.

Via a Joint Order of May 7, 2014, the OOMB grantedRevilla's motion to be furnished, but the grant covered
only copies of the counter-affidavits of six (6) of co-respondents. A week later, however, Sen. Revilla filed,
but the OOMB via its May 15, 2014 Order denied, an Omnibus Motion wherein he prayed for: (1) the
reconsideration of the May 7, 2014 Joint Order; (2) the recall of the March 28, 2014 Joint Resolution; (3)
the reconduct of the preliminary investigation; and (4) the reconstitution of another special panel of
investigators.

The May 15, 2014 order is now assailed in G.R. No. 212427-28.
In its June 4, 2014 Joint Order, the OOMB denied the petitioners' motions for reconsideration. On June 6
and 9, 2014, the Ombudsman filed before the Sandiganbayan the Informations against Revilla for one (1)
count of Plunder and sixteen (16) counts of vio!ation of Sec. 3(e) of RA 3019, which were docketed as
Criminal Case Nos. SB 14 CRM 0240 (for Plunder) and SB 14 CRM 0267 to 0282 (for Violation of Sec. 3[e] of
RA 3019).

On June 13, 2014, Revilla interposed a Motion for Judicial Determination of Probable Cause and Deferment
and/or Suspension of Proceedings. The Sandiganbayan, however, denied the motion and then issued
warrants of arrest against Revilla, et al.

In its August 28, 2014 Resolution, the Sandiganbayan dismissed Crim. Case Nos. SB-14-CRM-0267, 0270,
0271, 0274, 0277, 0278, 0281, and 0282 as against the four respondents from the DBM. In the same
resolution, however, the anti-graft court ordered the prosecution to present additional evidence to establish
the existence of probable cause against them in Crim. Case Nos. SB-14-CRM-0268, 0269, 0272,0273,
0275,0276, 0279; and 0280 (where Relampagos signed the SAROs involved). The prosecution moved for
partial reconsideration of the August 28, 2014 Resolution insofar as the dismissal aspect of the issuance is
concerned; but the Sandiganbayfin denied the motion in its Resolution of November 13, 2014. The
Sandiganbayan, however, affirmed the probable cause finding against the four DBM employees in Crim.
Case Nos. SB-14-CRM-0268, 0269, 0272, 0273, 0275, 0276, 0279 and 0280 on the ground that the
defenses they raised were evidentiary in character. In particular, the graft court held that the issue of
whether the IAs' endorsement was indispensable before a SARO can be issued is a matter of evidence to be
threshed out during trial. So too, the court added, is the issue of whether there was actual undue haste in
the issuance of the SAROs involved.

Relampagos, et al. moved for the reconsideration of the November 13, 2014 Resolution citing DBM Circular
Letter No. 2015-1, s. of 2015, which supposedly clarified that the IAs' endorsements are no longer required
before the issuance of the corresponding SARO. But in its May 13, 2015 Resolution, the Sandiganbayan
denied the motion pointing out the circular was issued only after the Ombudsman's probable-cause finding
resolution.

The above November 13, 2004 Resolution, as reiterated in the May 13, 2015 Resolution, is sought to be
invalidated in G.R. Nos. 213534-35.

It is against the foregoing factual backdrop that the petitioners, save those in G.R. Nos. 212014-15 and G.R.
Nos. 2187744-59, presently seek cognate reliefs, each one basically seeking to annul, as having been issued
in grave abuse of discretion, the March 28, 2014 Joint Resolution, as effectively affirmed in the June 4, 2014
Joint Order of the Ombudsman and other related issuances she and the Sandiganbayan rendered.

For ease of reference, the assailed Joint Resolution found probable cause to indict the petitioners for plunder
and violation of Sec. 3(e) of RA 3019, while the June 4, 2014 Joint Order denied reconsideration of the said
joint resolution.

The Petitions

G.R. Nos. 212014-15


Atty. Richard A. Cambe, petitioner

This is a petition for certiorari and prohibition to annul and, set aside the March 14, 2014 Joint Order of the
Office of the Ombudsman on the Motion to Suspend Proceedings and to command the Ombudsman from
further proceedings in the criminal complaints against Cambe.

To Cambe, the Ombudsman gravely abused her discretion by refusing to dismiss the criminal complaints or
at least suspend the proceedings despite non-compliance with a precondition or condition precedent to the
filing thereof. According to Cambe, the COE, which should have been preceded by a Notice of Finality of
Decision, is a precondition or condition precedent to the filing of the NBl and FIO complaints. However, since
the Notices of Disallowance (ND) have not become final and executqry at the time of filing of the complaints,
the Ombudsman should have dismissed the criminal complaints, or at least, suspended the proceedings for
noncompliance of said precondition or condition precedent.

G.R. Nos. 212427-28


Sen. Ramon "Bong" Revilla, Jr., petitioner
Senator Revilla assails in this recourse the OOMB's refusal, via its May 15, 2014 Order, (a) to provide him
with the requested counter-affidavits and other submissions subject of his motion to furnish, (b) to re-
conduct the preliminary investigation, recall and set aside the March 28, 2014 Joint Resolution and (c) to
constitute a different panel of investigators.

Pushing his point, Revilla alleges that the Ombudsman violated his right to due process when, in her March
28, 2014 Joint Resolution, she used nineteen (19) counter-affidavits4 of his co-respondents that he had' not
been previously furnished with, thereby depriving him the opportunity to respond to the allegations therein.
Revilla further argues that the Ombudsman's May 7, 2014 Order, belatedly furnishing him six out of the 19
counter-affidavits, with a right to submit a reply, does not cure the underlying fatal infirmity of the
proceedings. As the preliminary investigation is a nullity, Revilla adds, the Ombudsman should have recalled
its March 28, 2014 Joint Resolution and conducted another preliminary investigation. The senator takes the
Ombudsman's refusal to take the twin courses, like her refusal to replace the biased members of the
investigating panel as indicia of grave abuse of discretion.

Disputing the senator's posture on denial of due process, the OOMB, the FIO and the NBI, in their Comment,
alleged that he wain fact eventually furnished copies of the counter-affidavits of his co-respondents. Also,
the Ombudsman denied the charge of bias hurled against the Special Panel of Investigators. The public
respondents further aver that the fact that the Informations against Revilla have been filed with the
Sandiganbayan has rendered this particular issue moot and academic.

G.R. Nos. 212694-95


Sen. Ramon "Bong" Revilla, Jr., petitioner

Sought to be nullified in this certiorari and prohibition actions are the adverted March 28, 2014 Joint
Resolution and June 4, 2014 Joint Resolution of the OOMB. Revilla seeks to nullify the two issuances and
yventually annul the Informations for plunder and corrupt practices thus filed with the Sandiganbayan, on
the argument that the OOMB, in cond cting the preliminary investigation on the NBI and FIO complaints,
trampled upon the due process guarantee, particularly his right to be confronted with the accusations and
allegations charging him with crime.

Furthermore, Revilla faults the Ombudsman for her finding despite the complete absence of credible
inculpating evidence. He contends that there is absolutely no evidence to support allegations of his having
PDAF dealings with Napoles. To him, the complainants have yet to establish the commission of the required
overt acts and that all the allegations against him are hearsay, inadmissible evidence.

Revilla asserts that the only thing linking him to the supposed scam are the PDAF documents bearing his
forged signatures, the forgery admitted by no less than the complainants' witnesses and affirmed by two
independent handwriting experts. In this regard, Revilla maintains that in the absence of contrary
competent testimony, the findings of the handwriting experts stand. Invoking the doctrine of res inter alios
acta, he also argues that absent independent evidence to prove conspiracy, the Ombudsman cannot
consider the testimonies of the whistleblowers, who are self-confessed co-conspirators, against Revilla.

In traversal of petitioner Revilla's allegation about being denied due process, respondents OOMB, NBI, FIO
and the Office of thSpecial Prosecutors (OSP) adverted to the fact that the former was furnished with copies
of the six incriminating counter-affidavits and given time to comment thereon. As a corollary point,
respondents would argue that there were independent, credible and competent pieces of evidence that
establish the finding of probable cause against petitioner. They emphasize that out of the 32 PDAF
Documents shown to be signed by Revilla, he only contested 16 and the Ombudsman relied on 12 SAROs
purportedly signed by Revilla to indict him for plunder and violation of Sec. 3(E), RA 3019.

In his Reply to Comment, Revilla countered that the OOMB should have provided him with all the documents
he requested as a persop charged of the crime is entitled to be furnished with all evidence, be inculpating or
exculpating, obtaining in the case. Else the person so charged is deemed denied his constitutional right to
due process.

As to the public respondents' assertion that he refuted only a portion of the total number of PDAF
Documents as forgeries, Revilla cited a civil complaint he filed wherein he sought the nullification of all the
PDAF Documents. Revilla also clarified that there is no question on the regularity of the SAROs as these
were forwarded by the Senate to the DBM for the release of the funds. Rather, he emphasized that what he
is contesting are the letters to the IAs supposedly containing his endorsements of Napoles' NGOs and the
MOAs with them. He reiterates his denial of ever signing any of these endorsement letters and MOAs without
which, there is nothing to link him with Napoles.

On February 2, 2015, the Ombudsman herself, through the OSG, filed her Consolidated Comment on the
petitions. Among other things, she particularly took stock of Revilla's acts indicating his manifest partiality
and evident bad faith as shown by his repeated and direct endorsement of his PDAF-funded projects to
Napoles' NGOs without the requisite public bidding and compliance with GPPB Resolution No. 012-200, IRR
of R.A. 9184,5 amended, and National Budget Circular (NBC) No. 476.

G.R. Nos. 212794-95


Atty. Richard A. Cambe

In this petition for certiorari and prohibition, petitioner Cambe also seeks to annul the March 28, 2014 Joint
Resolution and the June 4, 2014 Joint Order, claiming the Ombudsman issued them in violation of his right
to due process. For one, Cambe states, the Ombudsman totally ignored his counter-affidavits and
countervailing evidence and even attributed to him statements and defenses which he did not make. Worse
still, Cambe adds, the statements in the aforesaid Joint Resolution betray the Ombudsman's failure to even
peruse what he submitted. For another, she used the counteraffidavits of other respondents against Cambe
without so much as providing him copies thereof. To compound matters, the Ombudsman even used various
memoranda which the whistleblowers admitted to have been falsified. For a third, Cambe, following Revilla's
lead, parlayed the res inter alios acta line. He also laments the Ombudsman's disregard of handwriting
experts' finding on the authenticity of his signatures on the PDAF Documents. He further raises the issue of
his right, as part of due process, to be furnished with the counter-affidavits of his co-respondents like
Revilla.

Finally, Cambe asserts that none of the elements for the successful prosecution of plunder or violation of
Sec. 3 (e) of R.A. 3019 is prbsent. As it were, Cambe claims, vis-a-vis the latter crime, he has nothing td do
with the PDAF projects let alone acting with manifest partiality, evident bad faith, or inexcusable negligence.
Most importantly, he did not, under the premises, cause undue injury to any party, or give any private party
unwarranted benefits, advantage, or preference in the discharge of his functions.

Public respondents, in their Consolidated Comment and training their sights on allegations of supposed
denial of due process, argue in the main that Cambe failed to present ny competent evidence to support his
thesis. On the contrary, Cambe was furnished copies of the counter-affidavits that directly linked him to the
crimes charged against him. They further argue that the issue on Cambe's pretense of being denied, under
the premises, of due process has been rendered moot by the Ombudsman's issuance of the May 7, 2014
Joint Order wherein Cambe was furnished copies of the requested documents and was given a chance to
comment thereon.

G.R. Nos. 213477-78


John Raymund De Asis, petitioner

In this petition to annul the March 28, 2014 Joint Resolution, De Asis contends at bottom as follows: (1) the
basic complaints were devoid of any allegation or proof that would justify the charge of Plunder against him.
At best, these allegations merely depicted him as exercising his duties as Napoles' driver, messenger, and
janitor which can hardly be construed as overt criminal acts of Plunder or a willful participation on his part to
commit the same. (2) He has no knowledge of the existence, let alone of being president, of Kaupdanan
Para sa Mangunguma Foundation, Inc. (KPMFI). De Asis describes as unimaginable for a mere high school
graduate and a former security guard, like him, to conspire with his employer and highranking government
officials to perpetrate the crime. He emphasized that the Joint Resolution expressly stated that his employer,
Napoles, had "full control and possession of the funds." And, (3) KPMFI was not used as conduit in the PDAF
scam.

Commenting on De Asis' declaration of good faith, the Ombudsman stated that the former's acts of receiving
checks for Napole' NGOs, depositing them in their bank accounts, delivering Napoles' share in the scam, and
assisting in the delivery of the lawmakers' kickbacks are not part of his duties as driver, messenger, or
janitor. Rather, for the Ombudsman, these are indispensable parts of the commission of Plunder and
violation of Sec. 3(E), RA 3019 in conspiracy with his employer and other persons.

The Ombudsman also shoots down, as specious, De Asis' Claims of not knowing about the incorporation of
KPMFI, with the fact that he does not effectively deny the authenticity of his signature on the incorporation
papers. At any event, the Ombudsman concludes, De Asis' acts under the premises contextually show his
participation in the conspiracy.

G.R. Nos. 213532-33


Ronald John Lim, petitioner

Lim prays in this certiorari action at bar for the annulment of the March 28, 2014 Joint Resolution,
predicating his plea on the premise that the Ombudsman issued the same when both the NBl and FIO
complaints do not even allege his specific action that constitutes a violation of Plunder. Lim asserts that the
complaints failed to establish the elements of the crimes charged against him and that the OOMB's Joint
Resolution itself shows that he was not one of those who received the checks issued to the NGOs. To stress,
he points out that only the NBl complaint named him as respondent. But even then, the NBl Complaint only
impleaded him for being the supposed president of Ginintuang Alay sa Magsasaka Foundation, Inc. (GAMFI),
when GAMFI was not even identified as an NGO that transacted with Revilla. He rued the sweeping
assumption taken that all Napoles' employees are involved in the subject scam.

To this key contention, the Ombudsman counters that Luy and Suas explicitly identified Lim as having
helped Napoles deliver commissions and kickbacks money to the lawmakers, an actuality clearly indicating
his involvement in the execution of the conspiracy to commit Plunder.

G.R. Nos. 218744-59


Mario Relampagos, Rosario Nuez,
Lalaine Paule, and Marilou Bare, petitioners

In G.R. Nos. 218744-59, Relampagos, Nuez, Paule and Bare assail the November 13, 2014 and May 13,
2015 Resolutions of the Sandiganbayan, which sustained the Ombudsman's finding of probable cause to
indict them in Criminal Case Nos. SB-14-CRM-0268, 0269, 0272, 0273, 0275, 0276, 0279 and 0280.
Petitioners contend that the Sandiganbayan gravely abused its discretion in refusing to declare the lack of
probable cause in the mentioned cases considering that the General Appropriations Acts (GAAs) for 2007,
2008 and 2009 already decreed the direct release of all PDAF allocations to the IAs without the need of the
prior requirement for the IAs' indorsement. For the petitioners, they cannot be faulted for issuing the SAROs
under that circumstance.

They also stress that the Sandiganbayan should have dismissed the prosecution's allegation that they
released the SAROs with "undue haste" since the SAROs involved were released four (4) to nine (9) days,
way beyond the 11 hours and 15 minutes processing period required under the DBM charter.

G.R. Nos. 213536-37


Janet Lim Napoles, petitioner

In this petition for certiorari, Napoles hooks her plea for the nullification of the March 28, 2014 Joint
Resolution and the June 4, 2014 Joint Order on this claim: the Ombudsman arrived at its flawed finding on
the existence of probable cause to charge her with Plunder notwithstanding the absence of the critical
element of "amassing ill-gotten wealth for an accused public officer." She argues that the complaints did not
establish the specific acts of the crime she supposedly committed nor the place and time of commission, and
that the testimonies of Luy, Sula and Suas are conflicting, unreliable, and barred by relevant rules of
evidence. Napoles also makes much of the fact that she is not a public officer, thus not subject in context to
prosecution by the Ombudsman before the Sandiganbayan.

In her Comment, the Ombudsman urges the outright dismissal of the Napoles petition for being baseless. To
a precise point, the Ombudsman alleged having acted within the scope of her jurisdictional authority in
detennining the existence of probable cause for the plunder and graft charges against Napoles, who,
through her indispensable cooperation and conspiratorial acts, such as concocting non-existent projects and
creating the bogus-NGOs, paved the way for Revilla to illegally divert his PDAF allocation and amass ill-
gotten wealth. And in controvertion of Napoles' posture, the Ombudsman contends that the complaints and
Information filed against the former are sufficient in form and substance since all theintegral parts were
explicitly indicated.

Issue

The crucial question underlying these consolidated petitions boils down to whether the Ombudsman acted
with grave abuse of discretion in finding probable cause to indict the petitioners for Plunder and violation of
Sec. 3(e) of RA 3019.

Discussion

As the ponencia points out, the courts do not usually interfere with the Ombudsman in the determination as
to the existence of probable cause.6 In other words, the Ombudsman possesses ample latitude to detennine
the propriety of filing a criminal charge against a person. Nonetheless, it must be emphasized that the
Ombudsman's broad authority is circumscribed by the need of an upright conduct of a preliminary
investigation.7 This balancing rule is intended to guarantee the right of every person from "the
inconvenience, expense, ignominy and stress of defending himself/herself in the course of a formal trial,
until the reasonable probability of his or her guilt has been passed"8and to guard the State against the
"burden of unnecessary expense and effort in prosecuting alleged offenses and in holding trials arising from
false, frivolous or groundless charges."9

In Principia v. Barrientos,10 this Court elucidated that in striking a balance between ensuring that, on one
hand, probable criminals are prosecuted and, on the other hand, the innocent are spared from baseless
prosecution,11 it is duty-bound to temper the authority of the Ombudsman where such authority may be
used for persecution:

x x x In Cabahug v. People, we took exception to the Ombudsman's determination of probable cause and
accordingly dismissed the case against the accused before the Sandiganbayan. Therein, we observed:

While it is the function of the Ombudsman to determine whether or not the petitioner should be subjected to
the expense, rigors and embarrassment of trial, he cannot do so arbitrarily. This seemingly exclusive and
unilateral authority of the Ombudsman must be tempered by the Court when powers of prosecution are in
danger of being used for persecution. Dismissing the case against the accused for palpable want of probable
cause not only spares her the expense, rigors and embarrassment of trial, but also prevents needless waste
of the courts' time and saves the precious resources of the government.

In Venus v. Hon. Desierto, where the case against the accused was also dismissed for want of probable cause,
we clarified that:

Agencies tasked with the preliminary investigation and prosecution of crimes must always be wary of
undertones of political harassment. They should never forget that the purpose of a preliminary investigation
is to secure the innocent against hasty, malicious and oppressive prosecution, and to protect one from an
open and public accusation of crime, from the trouble, expense and anxiety of a public trial, and also to protect
the State from useless and expensive trials. It is, therefore, imperative upon such agencies to relieve any
person from the trauma of going through a trial once it is ascertained that the evidence is insufficient to
sustain a prima facie case or that no probable cause exists to form a sufficient belief as to the guilt of the
accused.
On this account, especially in cases where the imposable statutory penalty is reclusion perpetua to death as
in this case, I submit that the Ombudsman must take into consideration only such competent and relevant
evidence in determining the probability of the existence of the elements of the crimes charged, for such
determination may spell months, if not years, of incarceration and anxiety for the accused, and vast
amounts of expenses by the State.

Where the Ombudsman finds probable cause despite the palpable absence of any competent and relevant
evidence of the elements of the crimes charged, I deem it the duty of this Court to reverse her findings on
account of such grave abuse of discretion, as had been previously discussed:

As a general rule, the Office of the Ombudsman is endowed with a wide latitude of investigatory and
prosecutory prerogatives in the exerc,ise of its power to pass upon criminal complaints. However, such
authoritx is not absolute; it cannot be exercised arbitrarily or capriciously. Verily, the Constitution has tasked
this Court to determine whether or not there as been grave abuse of discretion amounting to lack or excess
of jurisdiction on the part of any branch or instrumentality of the Government, including the Office of the
Ombudsman. Specifically, this Court is mandated to review and reverse the ombudsmans evaluation
of the existence, of probable cause, if it has been made with grave abuse of discretion.
xxxx

Grave abuse of discretion refers not merely to palpable errors of jurisdiction; or to violations of
the Constitution, the law nd jurisprudence. It refers also to cases in which, for various reasons,
there has been a gross misapprehension of facts. The present Petition is one such exception, involving
serious allegations of multimillion-dollar bribes and unlawful commissions.12
Prosecutors and the Ombudsman should verify the averments in the complaint and winnow all
the documents and testimonies not only to build the case but also to spare the state the expenses of a
frivolous trial and prevent the unnecessary prosecution of the innocent. In Salapuddin v. Court of
Appeals,13 the Court reminds, viz:

Hence, even at this stage, the investigating prosecutors are duty-bound to sift through all the
documents, objects, and testimonies to determine what may serve as a relevant and competent
evidentiary foundation of a possible case against the accused persons. They cannot defer and
entirely leave this verification of all the various matters to the courts. Otherwise, the conduct of a
preliminary investigation would be rendered worthless; the State would still be forced to prosecute frivolous
suits and innocent men would still be unnecessarily dragged to defend themselves in courts against groundless
charges. Indeed, while prosecutors are not required to determine the rights and liabilities of the parties, a
preliminary investigation still constitutes a realistic judicial appraisal of the merits of the case so
that the investigating prosecutor is not excused from the duty to weigh the evidence submitted and ensure
that what will be filed in court is only such criminal charge that the evidence and inferences can properly
warrant.14
Guided by these postulates, the Ombudsman's basis for finding probable cause against each of herein
petitioners vis-a-vis the elements of the crimes charged must be considered. For plunder, the following
elements must concur:

1. The offender is a public officer acting by himself or in connivance with members of his family, relatives by
affinity or consanguinity, business associates, subordinates or other persons.

2. The offender amasses, accumulates or acquires ill-gotten wealth.

3. The aggregate amount or total value of the ill-gotten wealth so amassed, accumulated or acquired is at
least fifty million pesos (P50,000,000).

4. Such ill-gotten wealth - defined as any asset, property, business enterprise or material possession of any
of the aforesaid persons (the persons within the purview of Section 2, RA 7080) - has been acquired directly
or indirectly through dummies, nominees, agents, subordinates and/or business associates by any
combination or series of the following means or similar schemes:

(i) through misappropriation, conversion, misuse or malversation of public funds or raids on the public
treasury;

(ii) by receiving, directly or indirectly, any commission, gift, share, percentage, kickbacks or any other form
of pecuniary benefit from any person and/or entity in connection with any government contract or project or
by reason of the office or position of the public officer concerned;

(iii) by the illegal or fraudulent conveyance or disposition of assets belonging to the national government or
any of its subdivisions, agencies or instrumentalities or government-owned or controlled corporations and
their subsidiaries;

(iv) by obtaining, receiving or accepting directly or indirectly any shares of stock, equity or any other form of
interest or participation including the promise of future employment in any business enterprise or undertaking;

(v) by establishing agricultural, industrial or commercial monopolies or other combination and/or


implementation of decrees and orders intended to benefit particular persons or special interests; or

(vi) by taking undue advantage of official position, authority, relationship, connection or influence to unjustly
enrich himself or themselves at the expense and to the damage and prejudice of the Filipino people and the
Republic.
Meanwhile, the elements of the crime of violation of Section 3 (e), RA 3019 are as follows: (a) the offender
must be a public officer discharging administrative, judicial, or official functions; (b) he must have acted
with manifest partiality, evident bad faith or gross inexcusable negligence; and (c) his action caused any
undue injury to any party, including the government, or gave any private party unwarranted benefits,
advantage or preference in the discharge of his functions.15

Revilla

The majority sustained the Ombudsman's finding of probable cause to indict Revilla for Plunder and violation
of Sec. 3(e) of RA 3019, for supposedly amassing ill-gotten wealth by allegedly misappropriating, or
supposedly receiving commission for allowing the misappropriation of, the PDAF in conspiracy with and/or by
giving unwarranted benefit to Napoles and her cohorts. As I have previously stated, I cannot concur with the
majority opinion.

A look at the evidence that the complainants had presented demonstrates that there is nary any
competent and relevant evidence that can constitute as basis for the finding of probable cause
against Revilla.

Ruling in favor of the complainants, the Ombudsman sweepingly concluded that Revilla conspired with
Napoles and her cohorts to amass illgotten wealth at the expense of the State, specifying Revilla's role in the
alleged conspiracy as follows:

During the time material to the charges, Senator Revilla issued several endorsement letters to NABCOR,
TRC and NLDC, expressly naming them as his chosen contractor for his PDAF projects.16

xxxx

Senator Revilla endorsed, in writing, the Napoles-affiliated NGO to implement projects funded by his
PDAF. His trusted staff, Cambe, then prepared indorsement letters and other communications relating to the
PDAF disbursements addressed to the DBM and the IAs (NABCOR, TRC and NLDC). On occasion, he allowed
Napoles' employees to prepare these documents and sign for him. x x x17

xxxx

x x x Senator Revilla, for one, repeatedly and directly, endorsed the NGOs to implement his
projects without the benefit of a public bidding and without having been authorized by an appropriation law
or ordinances legally mandated.18

xxxx

In order to repeatedly divert substantial funds from the PDAF, access thereto must be made available. This
was made possible by Senator Revilla, who chose NGOs affiliated with or controlled by Napoles to
implement his PDAF-related undertakings. x x x19.

xxxx

For their participation, in the above-described scheme, Senator Revilla, Javellana, Cunanan, Amata,
Buenaventura and Sevidal recetved portions of the subject PDAF disbursements from Napoles.20
To support such conclusion, the Ombudsman cited the, counter affidavits of Revilla's co-respondents and the
whistleblowers' bare testimonies, viz:

BUENAVENTURA, then a regular employee of the NLDC, avers in her Counter-affidavit dated 6 march 2014,
that in her processing of documents relating to the PDAF projects, she... 'checked and verified the
endorsement letters of Senator' Ramon Revilla, Jr., 'which designated the NGOs that would implement his
PDAF projects and found them to be valid and authentic;' and she also confirmed the authenticity of the
authorization given by Senator Revilla to his subordinates regarding the monitoring, supervision and
implementation of PDAF projects.21

xxxx

In his Counter-Affidavit dated 15 January 2014, SEVIDAL, NLDC Director IV x x x points to Senator Revilla
and Napoles, not NLDC employees, as the parties responsible for the misuse of the PDAF. He insists that
Senator Revilla, through Cambe, were responsible for 'identifying the projects, determining the projects costs
and choosing the NGOs' which was 'manifested in the letters of Senator Revilla.'22

xxxx

In his Counter-Affidavit dated 20 February 2014, CUNANAN, Deputy Director general of the TRC at the time
material to the complaints x x x related he met Napoles sometime in 2006 or 2007, who introduced herself as
the representative of certain legislators who supposedly picked TRC as a conduit for PDAF funded projects at
the same occasion, Napoles told him that 'her principals were then Senate President Juan Ponce Enrile,
Senators Ramon "Bong" Revilla, Jr., Sen. Jinggoy Ejercito Estrada;' in the course of his duties, he often ended
up taking and/or making telephone verifications and follow-ups and receiving legislatos or their staff
members;23

xxxx

In his Counter-Affidavit dated 8 January 2014, FIGURA TRC Department Manager III, denies the charges
against him x x x. Figura adds that x x x he and other low-ranking TRC officials had no power to 'simply
disregard the wishes of Senator' Revilla especially on the matter of public bidding for the PDAF projects.24

xxxx

Luy also confirmed in his Affidavit dated 12 September 2013 that Senator Revilla himself, indeed, transacted
with Napoles:

63. T: Nabanngiit mo na may mga chief of Staff ng mga Senador na ka-


transact ni JANET LIM NAPOLES, maari mo bang pangalanan kung
sinu-sino ang mga ito?

S: ... Kay Senador BONG REVILLA, kung hindi po siya mismo ang naka-
usap ni Madame JANET LIM NAPOLES AY SI Atty. RICHARD A. CAMBE
ang kinakausap...
Furthermore, Cunanan, in his Counter-Affidavit, claimed that Senator Revilla confirmed to him that he, indeed,
chose the NGOs named in the aforementioned letters and even admonished him for supposedly delaying the
release of PDAF allocations to his (Revilla) chosen NGOs':
17.1 In particular, I distinctly remember a certain occasion when we tried to verify a PDAF-funded project
initiated by the Office of Senator Ramon "Bong" Revilla, Jr., by calling the officially listed telephone number
of his office to check if a certain Atty. Richard A Cambe is indeed an authorized signatory for and in behalf of
Senator Revilla. Said verification turned out "positive" because not only was I able to talk to Atty. Cambe,
Senator Revilla himself even took the call at that instance and confirmed to me that he authorized Atty.
Richard A Cambe to coordinate and facilitate the implementation of his PDAF-funded projects. He likewise
confirmed to me the fact that he picked and endorsed the NGOs which will implement his PDAF-funded
Projects, and he even admonished me that now that I have been able to talked to him, the PDAF funded
project of said NGO should not proceed expeditiously from then on. I did not expect the said admonition by
Sen. Revilla, however, I merely replied to him that I am just doing my job.
Cunanan's testimony jibe with Luy, Sula and Suas' assertion that Senator Revilla's office participated in the
complex scheme to improperly divert PDAF disbursements from designated beneficiaries to NGOs affiliated
with or controlled by Napoles.25 cralaw red

Luy, Sula and Suas' version of events is supported by: (a) the business ledgers prepared by Luy, showing
the amounts received by Senator Revilla as his "commission" from the so-called PDAF scam; (b) the 2007-
2009 COA Report documenting the results of the special audit undertaken on PDAF disbursements which found
that there were serious irregularities relating to the implementation of PDAF-funded projects, including those
sponsored by Senator Revilla; and (c) the results of the independent field verification conducted by the FIO in
2013, which were consistent with the COA's findings and showed that the projects supposedly funded by
Senator Revilla's PDAF and implemented by NGOs affiliated with or controlled by Napoles were "ghost" or
inexistent.26

xxxx

Based on Luy's testimony, supported by his business ledg rs prepared during his tenure at Napoles'
organization, Senator Revilla received kickbacks from the scheme in the aggregate sum of
PHP242,512,500.00, mostly coursed through his authorized staff, Cambe.27
Notably, the pieces of evidence relied upon by the Ombudsman do not provide sufficient basis for even
a prima facie finding of probable cause to believe that Revilla negotiated and agreed with Napoles on:
(i) tpe list of projects to be chosen by the lawmaker; (ii) the corresponding IA tht would implement the
project; (iii) the project cost; (iv) the Napoles-controlled NGO that would implement the project; and (v) the
amount of commission or kickback which the lawmaker would receive in exchange for ehdorsing the NGO.
Indeed, the Ombudsman's affirmation of these allegations stands on mere inferences and
presumptions.

What is certain is that the Ombudsman surrnised Revilla's involvement with the PDAF scam from the
following: (1) his purported signatures appearing in several documents endorsing the NGOs affiliated with
Napoles; (2) the testimonies of the so-called "whistleblowers" and (3) the Counter-Affidavits of some of
Revilla's co-respondents. As will be discussed, these are neither relevant nor competent, and do not
constitute sufficient bases to sustain the finding of probable cause to subject Revilla to continuous
prosecution.

The PDAF Documents

By the PDAF documents, Revilla supposedly coerced the IAs to choose the Napoles NGOs to implement the
projects identified by Revilla. The Ombudsman should have been more than wary in acceptipg such
allegations since Revilla, as a member of Congress, was without authority to compel officials or agencies of
the executive branch to act at his bidding. The IAs, in fine, simply do not come under the jurisdiction of the
Senate, let alone senators. In fact, free from the legislature's control, the IAs are mandated by law to
conduct a public bidding in selecting the NGOs that would implement the projects chosen by the
legislator.

The duty of the IAs to conduct a public bidding and oversee the implementation ofPDAF projects is at once
apparent in the Natio al Budget Circulars (NBC) that the DBM issued. NBC No. 53728 states:

2.0 GENERAL GUIDELINES

xxxx

2.1.2 Funds shall be released


directly to implementing
agencies enumerated in the PDAF
Project Menu. x x x

2.6 All procurement shall comply with


the provisions of the Government
Procurement Reform Act (R.A.
9184).
xxxx

5.0 POSTING REQUIREMENTS

5.1 DBM shall post in its official website


all releases and realignments under
the PDAF. Implementing agencies
shall likewise post in their
respective official websites the (i)
priority list, standard and design
submitted to Congress; (ii) projects
identified and names of concerned
proponents; (iii) names of project
beneficiaries and/or recipients; (iv)
,any realignment authorized; (v)
status of project implementation;
and (vi) program/project evaluation
and/or assessment reports in line
with the Organizational
Performance Indicator Framework
(OPIF).

xxxx

5.3 For any procurement to be


undertaken under the PDAF, the
implementing agencies shall
post in the Philiplline
Government Electronic
Procurement System
(PHILGEPS) or in a newspaper
of general circulation all
invitation to bid, names of
participating bidders with their
corresponding bids, and awards
of contract in accordance with
R.A. 9184, its implementing rules
and regulations and Administrative
Order No. 17 dated 28 July 2011.

6.0 ACCOUNTABILITY

The implementing agencies


shall be accountable for the
implementation of the
programs/projects, subject
to existing budgeting,
accounting and auditing
rules and regulations.29
In a word, any endorsement made by Revilla does not bear any value that could have compelled the
endorsee IA to benefit a Napoles-controlled NGO. The choice of the NGO made by the IA, without complying
with RA 9184 and similar laws, falls on the IA alone. This is apparent from the very words of the NBI
Complaint, which states:

The COA Special Audit Office Report No. 2012-03 revealed that the livelihood projects were not undertaken
by the Implementing Agencies themselves, but by the NGOs endorsed by the Lawmaker. Among the
Implementing Agencies mentioned are NABCOR, NLDC, and TRC.

The arrangement is a blatant disregard of the provisions of the IRR-A of RA 9184 and issuances of GPPB. As
per GPPB Resolution No. 12-2007, funds may be transferred to NGOs for implementation when there is an
appropriation law or ordinance earmarking an amount to be specifically contracted out to NGOs. The
Implementing Agencies to where funds were released should have implemented the projects as
they are the Implementing Agencies defined in the GAA. It is noted that, as per 2007-2009 GAA,
NABCOR is not one of those mentioned Implementing Agencies of the Priority program /Projects of the
Lawmakers.

The NGOs were not selected in accordance with the Guidelines on Participation of NGOs in Public
Procurement prescribed under GPPB Resolution, that is, the selection of NGOs shall either be through
competitive bidding, prescribed under Section 21.2.4 of the IRR-A of RA No. 9184. Neither was it shown from
available evidence that the NGOs were accredited to qualify to implement government projects of great
magnitude.

xxxx

The responsible officers of the Implementing Agencies, NABCOR, NLDC and TRC, deliberately or, at the very
least, through gtoss inexcusable negligence failed to notice that the beneficiaries/recipients submitted by the
NGOs appear around four (4) to fifteen (15) times in the same or similar seminars/trainings. Among others,
the NGOs involved. are NAPOLES' NGOs, SDPFFI, MAMFI, POPDFI, APMFI, AEPFFI, CARED, PSDFI.
As Revilla maintained all along, his involvement/participation in the release of his PDAF was limited only to
the identification and selection of projects or programs listed in the GAA and communicating such selection
to the Chair of the Senate Committee on Finance and the Senate President. Any endorsement made by him
does not and cannot sway these IAs to act per his will and contrary to legal requirements. It is, therefore,
perplexing that Revilla's involvement in the PDAF scam is hinged on apparently worthless "endorsements" of
Napoles-controlled NGOs.

Further, the Ombudsman ought to have exercised caution especially since the "whistleblowers" no less
admitted to forging the lawmakers' endorsements of Napoles' NGOs to the IAs along with all
other PDAF Documents. Suas testified that they prepared these endorsement letters, upon which Revilla
is now being indicted. In her Sinumpaang Salaysay dated September 12, 2013, she stated:

May nabanggit ka na endorsement letter mula sa mga politicians,


22. T:
ano ang nilalaman nito?

Ito ay naka-addres sa Head ng Agency. Nakasaad ang amount


ng allocated na pondo, ang SARO Number, date, and napili
S:
nilang non-government organizations at mga bayan, na
makikinabang.

Kayo rin ba ang gumagawa ng mga endorsement letter ng mga


23. T:
politicians?

Si BENHUR K. LUY ang gumagawa ng draft ng endorsement


S:
letter.

Sino ang nag-uutos kay BENHUR LUY na gumawa ng draft ng


24. T:
endorsement letter?

S: Si Madame JENNY po.30


The fact of having falsified or forged the signatures on the PDAF Documents was again mentioned by Suas
in her own Sinumpaang Salaysay dated November 5, 2013, thus:

15. Tanong: Paano at sino ang mga nagproseso at lumagda sa mga


Certificates of Acceptance, Delivery Receipts, Acknowledgment
Receipts at Lists of Beneficiaries?

Sagot: Sa liquidation na po ginagawa ang mga papeles na ito. Sa


utos ni Ma'am Jenny, kami-kami na ring mga employees sa JLN
Corp. ang pumipirma sa mga pangalan ng mga taong involved
pati na ng mga beneficiaries sa liquidation papers. Kami-kami
na rin ang nag-imbento o nag-fabricate ng mga pangalan
tapos pinipirmahan na rin po namin opposite sa mga pangalan
nila.
16. Tanong: Sino at paano ang proseso ng pagliliquidate ng mga
proyekto na ipinatupad ng NGO gamit ang PDAF ni Sen. Revilla?

Sagot: Kami-kami na rin po ang gumagawa ng liquidation reports


tapos pinapapirma na lang namin sa mga president ng mga NGOs. 31

During the September 12, 2013 Senate Blue Ribbon Committee, Luy also admitted forging the signatures of
lawmakers:

Sen. Ang tanong ko, finorge (forge) or may finorge na ba kayong


Escudero: pirma ng senador o congressman dahil pineke 'yung
beneficiary, 'di ba, galing sa listahan ng kung sino. Fino-
forge niyo rin ba or nagkaroon ba ng okasyon na
finorge (forge) ninyo ang pirma ng congressman o
senador sa anumang dokumento?

Mr. Luy: With the approval of Ms. Napoles kasi sila po ang nag-
uusap, may pagkakataon po na pino-forge (forge) po.

Sen. May pagkakataong pino-forge niyo ang pirma ng


Escudero: mambabatas?

Mr. Luy: Opo.32


Luy restated his testimony in his Karagdagang Sinumpaang Salaysay dated September 12, 2013,33where he
admitted falsifying documents and forging signatures of legislators and their chiefs of staff, viz:

116. T: May iba pa ba kayong gagawin maliban sa report of


disbursement patungkol sa liquidation?

S: Mayroon pa po. Pini-prepare din yung list of beneficiaries,


certificate of inspection and acceptance coming from the office ng
proponent or legislators, certificate of project completion, delivery
receipts, sales invoice, official receipts from the supplier,
independent auditor's report, accomplishment report, at pictures ng
implementation kung mayroong implementation. Kung wala pong
implementation, wala po kaming i-attach na pictures. At sa mga
nasabing mga dokumento na kailangan ang pirma ng
legislators, may mga panahon po na kami na ang pumipirma
sa mga pangalan ng mga Chief of Staff ng mga legislators o
sa pangalan ng iilang Congressman sa utos ni Madame Janet
Lim Napoles.

117. T: Nabanggit mo na may mga panahon na kayo ang pumipirma sa


pangalan ng mga Chief of Staff ng mga legislators or sa pangalan
ng iilang Congressman, ano ang ibig sabihin dito at sinu-sino ang
mga kasama mong pumipirma?

S: Kapag kami ay nagli-liquidate at may mga dokumento na


kailangan ang pirma ng Chief of Staff ng mga legislators o ng
Congressman ay kami na po ang pumipirma para sa kanila sa
utos po ni Madame Janet Lim Napoles. Ang mga kasama ko po na
pumipirma sa mga nasabing dokumento ay sila Evelyn de Leon, at
Merlina Suas.34
Not to be overlooked are the findings of handwriting experts, Rogelio G. Azores and Atty. Desiderio A. Pagui.
The two were one in saying that the signatures appearing above Revilla's name on the PDAF Documents
were not his.35 Mr. Azores, in particular, concluded:

The questioned signatures above the printed name Hon. Ramon Revilla, Jr., Ramon "Bong" Revilla, Jr., Ramon
Revilla, Jr., on one hand and the standard signatures above the printed name Ramon "Bong" Revilla, Jr., on
the other hand, were not written by one and the same person.36
Atty. Pagui similarly found the signatures above Revilla's na ne on the PDAF Documents as not belonging to
the latter. Atty. Pagui's conclusion after examining the signatures on the PDAF documents and comparing
them with Revilla's standard signatures categorically declared that the signatures on the questioned
documents were not affixed by Revilla, viz:

(1) Between questioned signature marked "Q" and standard signatures.

Questioned signature ("Q"), its upward bar stroke (arrow 1, photograph) is slowly written evidence by the
irregular edges of both sides; at midsection downward stroke shows an added dot (arrow 2, photograph) to
connect the preceding upward bar stroke as appeared to have written in one fast movement; and terminal of
capital letter "B" shows uncertainty of writing movement; thus shows bold dot (arrow 3, photograph); while
in the series of standard signatures, corresponding upward bar strokes were written in fast and careless gliding
strokes as shown in their respective smooth lines at the edges. Terminal strokes in capital letter "B" show
careless downward before terminating writing movement in short stab upward strokes.

Natural variation of handwriting characteristics do not persist to exist between the questioned and standard
signatures. Natural variation of handwriting characteristics in normal or natural handwriting is unavoidable
characteristics in said genuine writings.

There exist between questioned signatures similarities in form, but similarities in form alone have no probative
value in the science of handwriting examination where authenticity of questioned signatures is at issue.
General form of letter or design close to the model coupled with slow and drawn tremulous writing are
symptoms of simulated forgery, to mention few of such defective writings.

(2) Between questioned signature marked "Q-1" and standard signatures.

The upward long bar stroke (arrow 1, photograph) in the questioned signature ("Q-1") exhibit slow writing
movement and pen lift at the midsection (arrow 2, photograph) as well as at terminal stroke (arrow 3,
photograph); and presence of hidden pen lift between the v-shape stroke and terminal stroke (arrow 4,
photograph).

In the standard signatures, long upward strokes are written in fast and unconscious writing movement, there
are no pen-lifts at the midsection as well at terminal stroke of capital letter "B", except in S-1 but not deliberate
addition. The v-shape forms and their terminal strokes are written in uninterrupted gliding writing movements.

(3) Between questioned signature marked "Q-2" and standard signatures.

Questioned signature marked "Q-2" is generally written in slow writing movement evidenced by tremulous
strokes. Unusual presence of two (2) pen lifts at the long upward bar stroke (arrows 1 & 2, photograph). [T]he
standards, show fast and unconscious writing movement in [the] entire[ty] of each letter designs.

Characteristics in questioned signature do not fall or embrace the same natural variation of writing
characteristics in standard signatures.

Similarities on forms or letter designs alone have no probative value in the science of handwriting identification
as forgers can master or perfect copying of letter forms or styles but not the so called individual or personal
writing characteristics that identify writer or owner.

xxxx

CONCLUSIONS:

In view of the forgoing, the scientific conclusions arrived for each of above mentioned questioned signatures
marked as "Q," "Q-1," "Q-2," "Q-3," "Q-4;" "Q-5," "Q-6," "Q-7," "Q-8," "Q-9," "Q-10," "Q-11," "Q-
12," "Q-13," "Q-14," "Q-15," "Q-16," "Q-17," "Q-18," "Q-19," "Q-20," "Q-21," "Q-22," "Q-23," "Q-
24," "Q-25," and "Q-26," for identification purposes, were NOT affixed or signed by the same
person whose standard signatures are those used as bases for the present scientific comparative
examinations. In other words, the foregoing specified questioned signatures are NOT authentic, which
mean, said questioned signatures were NOT affixed by Ramon "Bong" Revilla, Jr., whose standard
signatures admitted as genuine are those enumerated in item numbers B1 to B30, inclusive, above.37
In fact, even a cursory glance at some of the PDAF Uocuments questioned by Revilla reveals a forgery so
obvious as to be remarkably noticeable to the naked eye of an ordinary person. A prime example is
the "endorsement" letter addressed to Gondelina Amata of the NLDC dated October 23, 2009, supposedly
signed by Revilla. Compared to the standard signatures submitted by Revilla, the signature contained
therein lacks the cursive flourishes of his true signatures and instead contains sharp and blunt strokes.
Similarly noticeable is the variance of the letterheads used in these various endorsement letters, with some
containing supposed bar codes of Revilla's office, others simply a number.

Respondent Ombudsman, however, makes much of the letter dated July 20, 2011 Letter
addressed to COA Assistant Commissioner Cuenco, Jr., wherein Revilla supposedly confirmed the
authenticity of his and Cambe's signatures on the PDAF documents. Upon closer examination of
the said letter, however, Mr. Azores found that even the said letter is spurious. He noted, thus:

A Questioned signature above the printed name of one Ramon Bong Revilla, Jr. appearing in the letter (Xerox
copy) addressed to Assistant Commissioner Arcadia B. Cuenco, Jr. Special Services Sector, Commission on
Audit Commonwealth Avenue, Quezon City dated 20 July 2011.

xxxx

CONCLUSION:

The questioned signature above the printed name of one Ramon Bong Revilla, Jr., on one hand, and the
standard signatures above the printed name of Ramon "Bong" Revilla, Jr., on the other hand, were no written
by one and the same person.
The same finding was made by Atty. Pagui with respect to the same July 20, 2011 Letter. He observed:

A Questioned signatures "RAMON BONG REVILLA JR." appearing on the following machine/Xerox copies
allegedly from the originals, to wit:

1. Letter dated 20 July 2011 addressed to Assistant Commissioner Arcadio B. Cuenco, Jr., Special Service
Sector, Commission on Audit, Commonwealth Avenue, Quezon City from Office of Senator Ramon Bong
Revilla, Jr., Senate, Republic of the Philippines (Q);

xxxx

(1) Between questioned signature marked "Q" and standard signatures.

Questioned signature ("Q"), its upward bar stroke (arrow 1, photograph) is slowly written evidence by the
irregular edges of both sides; at midsection downward stroke shows an added dot (arrow 2, photograph) to
connect the preceding upward bar stroke as appeared to have written in one fast movement; and terminal of
capital letter "B" shows uncertainty of writing movement; thus shows bold dot (arrow 3, photograph); while
in the series of standard signatures, corresponding upward bar strokes were written in fast and careless gliding
strokes as shown in their respective smooth lines at the edges. Terminal strokes in capital letter "B" show
careless downward before terminating writ ng movement in short stab upward strokes.

Natural variation of handwriting characteristics do not persist to exist between the questioned and standard
signatures. Natural variatiom of handwriting characteristics in normal or natural handwriting is unavoidable
characteristics in said genuine writings.

There exist between questioned signatures similarities in form, but similarities in form alone have no probative
value in the science of handwriting examination where authenticity of questioned signatures is at issue.
General form of letter or design close to the model coupled with slow and drawn tremulous writing are
symptoms of simulated forgery, to mention few of such defective writings.

xxxx

CONCLUSIONS:

In view of the forgoing, the scientific conclusions arrived for each of above mentioned questioned
signatures marked as "Q," "Q-1," "Q-2," "Q-3," "Q-4," "Q-5," "Q-6," "Q-7," "Q-8," "Q-9," "Q-10," "Q-11,"
"Q-12," "Q-13," "Q-14," "Q-15," "Q-16," "Q-17," "Q-18," "Q-19," "Q-20," "Q-21," "Q-22," "Q-23," "Q-24," "Q-
25," and "Q-26," for identification purposes, were NOT affixed or signed by the same person whose standard
signatures are those used as bases for the present scientific comparative examinations. In other words, the
foregoing specified questioned signatures are NOT authentic, which mean, said questioned
signatures were NOT affixed by Ramon "Bong" Revilla, Jr., whose standard signatures admitted as
genuine are those enumerated in item numbers B1 to B30, inclusive, above.38
At the very least, the Azores and Pagui findings should have Impelled the Ombudsman to consider the
veracity of the signatures on the PDAF documents given that these experts' findings uniformly detail
discrepancies between the signatures in the PDAF documents and Revilla's dmitted genuine specimens of
writing. That the Ombudsman failed to even require NBI handwriting experts to study the
questioned signatures renders the immediate dismissal of the two handwriting expert's
certifications highly suspect. Where the genuineness of the documents is crucial to the respondents'
defense, it is more prudent, as stressed in People v. Agresor,39 to allow the opinion of handwriting experts:

The task of determining the genuineness of the handwriting would have been made easier had an
expert witness been employed to aid the court in carrying out this responsibility. The records show
that counsel for the accused did ask the court for time to file a motion so that the handwriting may be
submitted to the National Bureau of Investigation (NBI) to ascertain its authenticity. Such motion was,
however, denied by the court, ruling that "The Court itself can determine whether or not that handwriting is
the handwriting of the private complainant."

xxxx
It is true that the opinion of handwriting experts are not necessarily binding upon the courts, the expert's
function being to place before the court data upon which the court can form its own opinion. Ultimately, the
value of the expert testimony would still have to be weighed by the judge, upon whom the duty of determining
the genuineness of the handwriting devolves. Nevertheless, the handwriting expert may afford
assistance in pointing out distinguishing marks, characteristics and discrepancies in and between
genuine and false specimens of writing which would ordinarily escape notice or detection from an
unpracticed observer. There is no doubt that superior skills along these lines will often serve to
direct the attention of the courts to facts, assent to which is yielded not because of persuasion or
argument on the part of the expert, but by their own intrinsic merit ahd reasonableness.

As there was a dispute regarding the genuineness of the handwriting, it would have been more prudent if the
trial court allowed the presentation of a handwriting expert by the defense. The denial of the request for time
to file a motion to have the handwriting examined in effect rendered the right of the accused to have
compulsory process to secure the production ofevidence in his behalf nugatory.40
Being uncontroverted and, in fact, confirmed by the complainants' witnesses, I submit that this forgery of
Revilla's signatures and the falsification of the PDAF Documents should have dissuaded the Ombudsman
from filing the Infonnations against Revilla.

Certainly, the finding of probable cause to indict a person for plunder cannot be based
on admittedly falsified documents. While probable cause falls below proof beyond reasonable doubt in
the liierarchy of quanta of evidence, it must nonetheless be supported by sufficient, credible and competent
evidence, i.e., there should be facts and circumstances sufficiently strong in themselves to
warrant a prudent and cautious man to believe that the accused is guilty of the crime with which
he is charged. Thus, this Court elucidated in Allado v. Diokno:41

But then, it appears in the instant case that the prosecutors have similarly misappropriated, if not abused,
their discretion. If they really believed that petitioners were probably guilty, they should have armed
themselves with facts and circumstances in support of that belief; for mere belief is not
enough. They should have presented sufficient and credible evidence to demonstrate the existence
of probable cause. For the prosecuting officer "is the representative not of an ordinary party to a
controversy, but of a sovereignty whose obligation to govern impartially is as compelling as its obligation to
govern all; and whose interest, therefore, in a criminal prosecution is not that it shall win a case, but that
justice shall be done. As such, he is in a peculiar and ery definite sense the servant of the law, the twofold
aim of which is that guilt shall not escape or innocence suffer. He may prosecute with eamest ess and vigor -
indeed, he should do so. But, while he may strike hard blows, he is not at liberty to strike foul ones. It is as
much his duty to refrain from improper methods calculated to produce a wrongful conviction as it is to use
every legitimate means to bring about a just one."

In the case at bench, the undue haste in the filing of the information and the inordinate interest of
the government cannot be ignored. From the gathering of evidence until the termination of the
preliminary investigation, it appears that the state prosecutors were overly eager to file the
case and secure a warrant for the arrest of the accused without bail and their consequent detention. x x x

Indeed, the task of ridding society of criminals and misfits and sending them to jail in the hope that they will
in the future reform and be productive members of the community rests both on the judiciousness of judges
and the prudence of prosecutors. And, whether it is preliminary investigation by the prosecutor, which
ascertains if the respondent should be held for trial, or a preliminary inquiry by the trial judge which determines
if an arrest warrant should issue, the bottomline is that there is a standard in the determination of the
existence of probable cause, i.e., there should be facts and circumstances sufficiently stronin
themselves to warrant a prudent and cautious man to believe that the accused is guilty of the crime
with which he is charged. Judges and prosecutors are not off on a frolic of their own, but rather engaged
in a delicate legal duty defined by law and jurisprudence.42
Testimonies of the Co-Respondents

Absent any credible proof of Revilla's actual link or partic pation in the alleged scheme to divert his PDAF to
Napoles' NGOs, the Ombudsman should likewise not have accepted hook, line, and sinker any testimony of a
participant in the supposed conspiracy.

It is basic that an extrajudicial confession binds only the confessant or declarant and is
inadmissible against his or her coaccused.43 This basic postulate, an extension of the res inter alios
acta rule, is embodied in Section 28, Rule 130 of the Rules of Court, which states:

SECTION 28. Admission by third party. - The rights of a party cannot be prejudiced by an act, declaration, or
omission of another, except as hereinafter provided.
Under the rule, the testimony made by the confessant is he,arsay and inadmissible as against his co-
accused even during the preliminary investigation stage.44 We explained why so in Tamargo v. Awingan:45

Considering the paucity and inadmissibility of the evidence presented against the respondents, it
would be unfair to hold them for trial. Once it is ascertained that no probable cause exists to form a
sufficient belief as to the guilt of the accused, they should be relieved from the pain of going through a full
blown court case. When, at the outset, the evidence offered during the preliminary investigation is
nothing more than an uncorroborated extrajudicial confession of an alleged conspirator, the
criminal complaint should not prosper so that the system would be spared from the unnecessary
expense of such useless and expensive litigation. The rule is all the more significant here since
respondent Licerio Antiporda remains in detention for the murder charges pursuant to the warrant of arrest
issued by Judge Daguna.46
The exception to the above rule, the succeeding Section 30 of Rule 130, requires foremost, the existence of
an independent and conclusive proof of the conspiracy47 and that the person concerned has performed an
overt act in pursuance or furtherance of the complicity.48

As discussed above, besides the admittedly falsified and forged PDAF documents, there is no concrete
proof showing that Revilla pulled off any "overt act" in furtherance of the supposed conspiracy
with Napoles. Other than saying that without Revilla, the scheme would have supposedly failed, the
Ombudsman has been unable to point to concrete set of facts to support her conclusion as to the complicity
of Revilla to the conspiracy in question. Thus, the conclusion reached by the Ombudsman falls short of
the threshold requirement that conspiracy itself must be proved as positively as the commission
of the felony itself. The quantum of evidence required is as should be, as conspiracy is a "facile device by
which an accused may be ensnared and kept within the penal fold."49

For this reason, I submit that the testimonies of Revilla's corespondents cannot be taken against him. Yet,
the Ombudsman repeatedly and freely cited the previously withheld counter-affidavits of Revilla's co-
respondents in finding probable cause to indict him for Plunder and violation of Section 3(e) of RA 3019.

The reliance on these previously suppressed testimonies of Revilla's co-respondents to conjure up probable
cause against him is not only violative of the res inter alios acta rule, worse, it desecrates the basic rule of
due process.

To recall, the counter-affidavits of Revilla's co-respondents, in which the foregoing statements were
contained, were not furnished to Revilla before the Ombudsman rendered the March 28, 2014 Resolution
despite Revilla's Motion to be Furnished. In denying the Motion, the Ombudsman held that it had no basis to
grant the motion and cited Artillero v. Casimiro.50 But Artillero is not even applicable to the case. First,
in Artillero, it was the complainant who claimed denial of due process when he was not furnished with a copy
of the counter-affidavit of the accused. Here, it is the petitioner, as accused, requesting for the counter-
affidavits of his co-respondents. Second, the complainant in Artillero requested a copy of the counter-
affidavit of the accused not because he wanted to answer the counter-charges against him, such as what
petitioner intended to do, but because he wanted to file a reply lest his complaint is dismissed for
insufficiency of evidence.

After denying Revilla's Motion to be Furnished and his Motion for Reconsideration, the Ombudsman would
suddenly turn around, find Revilla's request in order, and allow him to be furnished copies of the counter-
affidavits of some his co-respondents.

In a bid to justify her initial refusal to provide Revilla with subject affidavits, the Ombudsman stated that
Revilla was anyway eventually furnished the desired documents before the rendition of the assailed June 4,
2014 Joint Order (albeit after the March 28, 2014 Joint Resolution) and yet chose not to submit his comment
within the time given him. Upon this premise, Revilla cannot, as the Ombudsman posited citing Ruivivar v.
Office of the Ombudsman,51 be heard about being denied due process having, as it were, "been given
ample opportunity to be heard but x x x did not take full advantage of the proffered chance."

I believe that that the Ombudsman has misread Ruivivar, which, at bottom, is not consistent with the
essence of due process: to be heard before a decision is rendered. In Ruivivar, petitioner Ruivivar's
motion for reconsideration that paved the way for his being furnished with copis of the affidavits of private
respondent's witnesses came after the Ombudsman rendered a decision. In the present case, however,
Revilla's request to be furnished with his co-respondents' counter-affidavits preceded the Ombudsman's
issuance of her probable cause-finding resolution. Clearly, the accommodation accorded Revilla was
belated, i.e., after the qenial of his motion for reconsideration and way after the issuance of the resolution
finding probable cause against him. There lies the crucial difference.

It appears that the Ombudsman issued the May 7, 2014 Joint Order only as an afterthought, as an attempt
to address the defects of the preliminary investigation the OOMB conducted on petitioner. However, such
Order is of little moment as any comment that Revilla would file would no longer have any bearing precisely
because the Ombudsman already issued the Joint Resolution on March 28, 2014 finding probable cause
against them.

Worse, the Court cannot see its way clear on why the Ombudsman limited the grant to few counter-
affidavits when it could have allowed Revilla access to all counter-affidavits and other filings of his co-
respondents. The Ombudsman conveniently justified the selective1liberality on the notion that only these
counter-affidavits contain allegations that tend to incriminate Revilla to the scam. Yet, as pointed out by
Revilla, due process does not only cover the right to know and respond to the inculpatory
evidence, but also the concomitant right to secure exculpatory evidence. The mere fact of
suppression of evidence, regardless of its nature, is enough to violate the due process rigpts of
the respondent.52

Indeed, Morfe v. Mutuc53 teaches that the due process requirement is met if official action is free
from arbitrariness. But, the Omblidsman's denial and limitation of Revilla's Motion to be
Furnished, were arbitrary and unreasonable for there was nothing improper or irregular in
Revilla's request. And it cannot be overemphasized in this regard that the requesting petitioners offered to
have the requested documents photocopied at his expense. Verily, these limitations coupled with her ue
of the counter-affidavits requested against Revilla, without giving him a prior opportunity to
know each and every allegation against him, whether from the complainants and their witnesses
or his co-respondents, are random, unreasonable, and taint the Ombudsman's actions with grave abuse
of discretion for violating the sacred rule of due process. As such, the statements contained in the
Counter-Affidavits of Revilla's corespondents cannot be used to find probable cause to indict him.

In Duterte v. Sandiganbayan54 where the petitioners therein1 were not sufficiently apprised of the charges
against them during preliminary investigation, this Court ordered the dismissal of the criminal case filed
against them, viz:

We have judiciously studied the case records and we find that the preliminary investigation of the charges
against petitioners has been conducted not in the manner laid down in Administrative Order No. 07.

In the 12 November 1991 Order of Graft Investigator Manriquez, petitioners were merely directed to submit
a point-by-point comrltent under oath on the allegations in Civil Case No. 20,550-91 and on SAR No. 91-
05. The said order was not accompanied by a single affidavit of any person charging petitioners of
any offense as required by law. They were just required to comment upon the allegations in Civil Case No.
20,550-91 of the Regional Trial Court of Davao City which had earlier been dismissed and on the COA Special
Audit Report. Petitioners had no inkling that they were being subjected to a preliminary
investigation as in fact there was no indication in the order that a preliminary investigation was
being conducted. If Graft Investigator Manriquez had intended merely to adopt the allegations of the
plaintiffs in the civil case or the Special Audit Report (whose recommendation for the cancellation of the
contract in question had been complied with) as his bases for criminal prosecution, then the procedure was
plainly anomalous and highly irregular. As a consequence, petitioners' constitutional right to due
process was violated.

xxxx

WHEREFORE, premises considered, the petition is GRANTED and Criminal Case No. 23193 is hereby
DISMISSED. The temporary restraining order issued on 4 September 1997 is made PERMANENT.55
In like manner, in the present case, Revilla was not sufficiently apprised of the entirety of the allegations
against him before the probable cause finding Resolution of March 28, 2014 was rendered by the
Ombudsman. Consequently, his right to due process was denied and I believe that this Court is duty-bound
to reverse the Ombudsman's action that was tainted with grave abuse of discretion.

Even assuming arguendo that the counter-affidavits of Revilla's corespondents are admissible, the
testimonies contained therein are inadequate to engender the probability that Revilla was a knowing
participant in the alleged scheme to divert the PDAF. Buenaventura simply testified in general terms that
that she confirmed the authenticity of the authorization given by Revilla56 without specifying how she made
such confir ation or providing the details of the documents and transactions involved. In like manner,
Sevidal broadly claimed that Revilla, through Cambe, was responsible for "identifying the projects costs and
choosing the NGOs"57 but did not provide the factual details that justified her claim. Figura's declaration of
having no power to "simply disregard the wishes of [Revilla]" is a clearly baseless assumption.

Meanwhile, a closer look of Cunanan's testimony, which was a critical part of the Ombudsman's Resolutions,
bares the infirmity of his claim. While he could have easily asked for a written confirmation of the
authorization given by Revilla to Cambe, Cunanan himself admitted that he, instead, supposedly sought
verification over the telephone. Yet, an audio recording of the alleged telephone conversation was not
presented or even mentioned. Not even a transcript of the alleged telephone conversation was attached to
Cunanan's Counter-Affidavit.

Section 1, Rule 11 of the Rules on Electronic Evidence provides that an audio evidence, such as a telephone
conversation, is admissible only if it is presented, explained, or authenticated, viz:

SECTION 1. Audio, video and similar evidence. - Audio, photographic and video evidence of events, acts or
transactions shall be admissible provided is shall be shown, presented or displayed to the court and shall be
identified, explained or authenticated by the person who made the recording or by some other person
competent to testify on the accuracy thereof.
Given that no audio evidence of the telephone conversation was presented, much less "identified, explained
or authenticated," the occurrence of the alleged telephone conversation is rendered highly suspect, if not
improbable, and any testimony thereon is inadmissible and of no probative

But granting, arguendo, that Cunanan did call Revilla's office, it still begs the question of how he could have
recognized or confirmed the identity of the person he was speaking with over the phone and not face-to-
face. There is no indication, and Cunanan never even hinted, that he was closely familiar with Revilla's voice
that he can easily recognize it over the phone in a single conversation.

This Court had previously declared that the person with whom the witness was conversing on the
telephone must first be reliably identified before the telephone conversation can be admitted in
evidence and given probative value. In Sandoval v. House of Representatives Electoral Tribunal,58 the
Court held, thus:

It must also be stressed that, as a matter of reliability and trustworthiness, a telephone conversation
must first be authenticated before it can even be received in evidence. To this end, it is critical that
the person with whom the witness was conversing on the phone is first satisfactorily identified, by
voice recognition or any other means, as the Chief of Staff In the instant case, there is no evidence to
conclude that the person who called up the HRET Office of the Secretary was the Chief of Staff of petitioner
Sandoval except for the unverified and hearsay identification allegedly made by the caller himself/herself.
Worst, the record does not even divulge the alleged employee at the HRET Office of the Secretary from whom
the purported caller asked about the releyant matter.59

A similar conclusion was reached by this Court in People v. Wagas,60 where it ruled, viz:

Finally, Ligaray's declaration that it was Wagas who had transacted with him over the telephone was not
reliable because he did not exp ain how he determined that the person with whom he had the
telephone conversation was really Wagas whom he had not yet met or known before then. We
deem it essential for purposes of reliability and trustworthiness that a telephone conversation like
that one Ligaray supposedly had with the buyer of rice to be first authenticated before it could be
received in evidence. Among others, the person with whom the witness conversed by telephone should be
first satisfactorily identified by voice recognition or any other means. Without the authentication,
incriminating another person just by adverting to the telephone conversation with him would be
all too easy. In this respect, an identification based on familiarity with the voice of the caller, or because of
clearly recognizable peculiarities of the caller would have sufficed. The identity of the caller could also be
established by the caller's selfidentification, coupled with additional evidence, like the context and timing of
the telephone call, the contents of the statement challenged, internal patterns, and other distinctive
characteristics, and disclosure of knowledge of facts known peculiarly to the caller.61

Verily, it is only fair that the caller be reliably identified first before a telephone communication is
accorded probative weight. The identity of the caller may be established by direct or circumstantial
evidence. x x x62
In this case where there is no authentication or identification of the person with whom Cunanan was
conversing on the telephone, Cunanan's testimony is inadmissible and of no probative value.

In sum, the Ombudsman should have closely scrutinized the testimonies of the alleged participants in the
supposed conspiracy. This holds especially true for testimonies that not only try to relieve the affiant from
responsibility but also seek to pass the blame to others. The Ombudsman, however, utterly failed to do so
and simply accepted the co-respondents' declarations as the gospel truth, unmindful that a neglect to
closely sift through the affidavits of the parties can still force the unhecessary prosecution of frivolous cases.
By itself, this neglect constitutes a grave abuse of discretion, which should be reversed by this Court.

Whistleblowers' Testimonies

Anent the elements of the crimes charged, the gravamen of the crime of Plunder is the accumulation by the
accused of ill-gotten wealth amounting to at least Fifty Million Pesos (P50,000,000.00). In a bid to satisfy
this element against Revilla, the Ombudsman heavily relied on the testilnonies of the whistleblowers, Luy,
Sula, and Suas. Yet, none of the witnesses stated that they deposited money representing the
alleged commissios to any of Revilla's accounts. Not one of them testified that they personally
handed money or saw anyone handing/delivering money to Revilla as commission/kickback.

The closest thing passed as proof by the complainants is the private and personal records of Luy. But,
even Luy himself admitted his lack of personal knowledge of Revilla's involvement in the PDAF
scam, much less of the former senator receiving money from it. In his September 12,
2013 Karagdagang Sinumpaang Salaysay, Luy stated:

T: Mayroon bang pagkakataon na ikaw mismo ay nakapagbigay ng pera


ng "rebates" ng transaction sa Senador o Congressman o sa kung
sinomang representative ng pulitiko?

S: Opo. Sa mga Chief-of-Staff ng mga Senador at sa Jnga Congressman


mismo ay nakapag-abot na po ako ng personal, Pero sa mga
Senador po ay wala pong pagkakataon na ako mismo ang nag-
abot. Naririnig ko lang kay Madame Janet Lim Napoles na
nagbibigay daw sa mga Senador.63
The foregoing at once betrays the hearsay nature of Luy's testimony against Revilla. The hearsay nature
of Luy's testimony regarding Revilla's receipt of money from his PDAF is again highlighted in Luy's Sworn
Statement of November 8, 2013, viz:

Q: How can you tell that Janet Lim Napoles already gave, the
commissions or kickbacks to Sen. Ramon Revilla?
A: Pagbalik ni Mrs. Napoles sa office ng JLN Corporation, pinaparecord
niya sa akin sa ledger ni Senator Revilla na natanggap na niya ang
pera, or minsan itinatawag ni Mrs. Napoles sa akin na naibigay na
niya ang pera kay Senator Bong Revilla at record ko na sa ledger.

Q: Do you personally know Sen. Ramon Revilla, Jr.?

A: Hindi po. ...


Similarly, the testimony given by Suas on September 12, 2013 regarding the supposed receipt by Revilla of
a part of his PDAF is not based on her own personal knowledge. She stated:

51. T: Maaari mo bang ipaliwanag ang ibig mong sabihin na ang pondo
na sa halip napunta sa dapat na beneficiaries ay napunta kay
Madame JENNY at sa mga senador?

S: Dahil sa ang pondo na mula sa PDAF na dapat mapunta sa mga


mambabatas ay pinaghahatian. Limampung porsyento (50%) sa
mambabatas, limang porsyento (5%) sa Chief of Staff ng
mambabatas, sampung porsyento (10%) sa implementing
agency at ang natitirang tatlumput limang porsyento (35%)
napupunta kay Madame JENNY.

52. T: Maari mo bang sabihin kung paano mo nalaman ang sistema ng


hatian na iyong binanggit?

S: Sinasabi sa amin ni Madame JENNY.64


Given the hearsay character of the whistleblowers' testimonies, these are devoid of any intrinsic merit,
dismissible as without any probative value.65

At most, the whistleblowers claimed that money was handed to Cambe. Yet, there is nothing to prove
that Revilla received the said money from Cambe or that Cambe's alleged receipt of the said
money was under his authority or instruction.

For this and for the fact that there is absolutely nothing competent and relevant that can sway a reasonable
man to believe that Revilla had participated in the PDAF scheme, I vote for the reversal of the Ombudsman's
finding of probable cause to indict Revilla for plunder and violation of Section 3(e) of RA 3019 on account of
grave abuse of discretion.
It must not be forgotten that the crimes involved in these clases are Plunder and violation of Section 3 (e),
RA 3019-two grave charges that can strip a man of his good name and liberty, as in this case. The
Ombudsman should not have found probable cause to indict Revilla given that there is nothing but falsified
documents, hearsay testimonies and declarations barred by the res inter alios acta that support the
complaints. Worse, the Ombudsman violated the due process protection of the Constitution in citing
affidavits and testimonies not previously furnished Revilla. Without doubt, the Assailed Resolutions, insofar
as it found probable cause against Revilla, were tainted with grave abuse of discretion.

Cambe

As to Cambe, the March 28, 2014 Joint Resolution of the respondent OOMB briefly outlines his alleged
participation in the conspiracy, thus:

Senator Revilla x x x authorized in writing his Chief-of-Staff Cambe to act for, deal with, and sign
documents necessary for the immediate and timely implementation of his PDAF-funded projects. From 2006
to 2012, Senator Revilla, through Cambe, issued several indorsement letters to NABCOR, TRC, and
NLDC, expressly naqting the following NGOs to carry out his PDAF projects: AEPFFI, APMFI, MAMFI, PSDFI,
and SDPFFI.

Once a PDAF allocation becomes available to Senator Revilla; his office or staffwould advise Napoles or her
employees or cohorts about it. Napoles or witness Luy would then prepare a listing of the projects available
indicating the IAs. This listing would be sent to Cambe who would sign and indorse the same to the DBM
under his authority as Chief-of-Staff of Senator Revilla. After the listing is released to, the DBM, the
Office of Senator Revilla then formally requests the DBM to release his PDAF; Napoles, in the meantime, would
advance to Revilla, through Cambe, a down payment representing a portion of his commission or kickback.
After the SARO and/or NCA is released, Napoles would give the full payment for the delivery to Senator Revilla
through Cambe.

xxxx

Significantly, after the DBM issues the SARO, Senator Revilla, through Cambe, would then write another letter
addressed to the IAs which would identify and indorse Napoles' NGOs as his preferred NGO to undertake the
PDAF-funded project. x x x (emphasis added, citations omitted)
In fine, the Ombudsman, in its Joint Resolution, attempted to establish Cambe's liability by presenting an
elaborate, complicated schem wherein he purportedly conspired with Revilla, et al. and the whistleb owers
to allegedly enable Revilla to illegally acquire and amass portions of the PDAF through kickbacks.

Cambe's participation in the alleged conspiracy scheme to amass wealth, therefore, hinges on his
participation as staff member of Sen. Revilla, and his purported signatures on the PDAF documents. On this
point, Cambe argued that all his signatures in the PDAF documents were forged, and, thus, his participation
in the conspiracy scheme has not been adequately established.

To underscore his point, he presented the examination report dated December 5, 2013 of Atty. Pagui, the
forensic document examiner who examined the purported signatures of Cambe appearing on the PDAF
documents, and compared them with various standard signaturespresented by Cambe. In his report, Atty.
Pagui concluded:

(1) Between questioned signature marked


"Q" and standard signatures:

Questioned signature reveals inner loop lying horizontally which shows uncertainty or writing direction coupled
with unnecessary pen tops and pen lifts at wrong places, signs of uncertainty of direction of writing strokes,
likewise presence of slow and tremulous strokes indicative of unfamiliarity of habitual writing movements that
resulted to simulation from certain model genuine signature. In the larger loop, it shows evidence of two (2)
pen stops: initial and terminal.

In the standard signatures, which are written in fast and continmous writing strokes, obviously there are no
pen lifts and no presence of tremulous strokes. The construction of the inner loop is constant and with clear
reflection of the true art or image it represent[s].

(2) Between questioned signature marked


"Q-1" and standard signatures:

Questioned signature is characterized with unusual tremulous strokes, pen lifts at wrong places in the
signatures which should be in. fast and unconscious writing movements. It exhibits evidences of absence of
round horizontal design within the [larger] loop that encircled the latter, but letter form or design that lies
laterally at its base.

In the standards, they constantly carry letter design written With almost circular letter form within the area
encircled by the larger loop with consistent fast and unconscious continued writing movements, peculiar with
all the standard signatures. There are no pen lifts and tremulous strokes while the writing process proceeds
until the whole signature are accomplished.

xxxx

SCIENTIFIC CONCLUSIONS:

IN VIEW OF THE FOREGOING, the scientific conclusions arrived at, all questioned signatures marked for
identification purposes in , the machine/xerox copies are as follows, to wit: "Q", "Q-1", "Q-2", "Q-3", "Q-
4", "Q-4A", "Q-5", "Q-6", "Q-7", "Q-8", "Q-9", "Q-10", "Q-11", "Q-12", "Q-13", "Q-14", "Q-15",
"Q-15A", "Q-16", "Q-16A", "Q-17", "Q-18", "Q-19", "Q-20", "Q-21", "Q-22", "Q-23", "Q-24", "Q-
25", "Q-26", "Q-27", "Q-28", "Q-29", "Q-30", "Q-31", "Q-32", "Q-33", "Q-34", "Q-35", "Q-36", "Q-
37", "Q-38"' "Q-39", "Q-40", "Q-41", "Q-42", "Q-43", "Q-44", "Q-45", "Q-46", "Q-47", "Q-48", "Q-
49", "Q-50", "Q-51", "Q-52", "Q-53", "Q-54", "Q-55", "Q-57", :"Q-58", "Q-59", "Q-60", "Q-61",
"Q-62", "Q-63", "Q-64", "Q-65", "Q-66", "Q-67", "Q-68", "Q-69", "Q-69A", "Q-70", "Q-71", "Q-
72", "Q-73", "Q-74", "Q-75", "Q-76", "Q-77", "Q-78", "Q-84", "Q-87", "Q-88", "Q-89", "Q-90", "Q-
91", "Q-92", "Q-93", "Q-94", "Q-95", "Q-96", "Q-97", "Q-98", "Q-99", "Q-100", AND "Q-168", and
standard signatures likewise marked for identification purposes are as follows to wit: "S-5a", "S-6a", "S-
7a", "S-7", "8-8", "S-9", "S-12", "S-22", "S-23", "S-24", "S-25", "S-26", "S-27", "S-28", "S-29",
"S-30", "S-31", "S-32", "S-33", "S-34", "S-35", "S-36", "S-38", "S-39", "S-40", "S-41", "S-42", "S-
43", and "S-44", were NOT written/affixed by one person. In other words, the questioned signatures
assuming the machine/xerox copies are authentic reproductions of the original documents they purport to
represent, the foregoing questioned signatures were NOT affixed by a certain Atty. Richard A. Cambe, whose
standard signatures are those enumerated above, used as bases in the present scientific comparative
examinations.
Interestingly, the March 28, 2014 Joint Resolution of the respondent Ombudsman did not once mention the
examination report of Atty. Pagui, nor did it squarely address the allegation of forgery. It immediately
dismissed the argument by saying:

Forgery is not presumed; it must be proved by clear, positive, and convincing evidence and the burden of
proof lies on the party alleging forgery.
Further, as gathered from the March 28, 2014 Joint Resolption, the fact of Cambe, acting on his own as a
public officer, amassing or acquiring ill-gotten wealth amounting to at least Fifty Million Pesos
(P50,000,000.00) through any of the means provided under the plunder law or acting in violation of RA
3019 has not been demonstrated.

The Ombudsman simply relied heavily on the statements of Luy, Sula, and Suas, who confessed to having
conspired with Napoles in executing this scheme. From their statements, the Ombudsman pieced together
the participation of Revilla, Cambe, and the other petitioners. Thus, Cambe asserts that the whistleblowers'
statements cannot be used against him under the res inter alios acta rule.

Respondents, through the OSG, claim that the case against Cambe fall under the exception to such rule.

I am unable to agree. The exception to the res inter alios acta rule, as earlier indicated, in Section 30 of
Rule 130 provides:

Section. 30. Admission by conspirator. - The act or declaration Qf a conspirator relating to the conspiracy and
during its existence, may: be given in evidence against the co-conspirator after the conspiracy is shown by
evidence other than such act or declaration.
People v. Cachuela66 succinctly dwells on the application the rule and its exception, thus:

At any rate, Nabilgas' extrajudicial confession is inadmissiblin evidence against the appellants in view of the res
inter alios acta rule. This rule provides that the rights of a party cannot be prejudiced by an act, declaration,
or omission of another. Consequently, an extrajudicial confession is binding only on the confessant and is not
admissible against his or her co-accused because it is considered as hearsay against them.

An exception to the res inter alios acta rule is an admission made by a conspirator under Section 30, Rule 130
of the Rules of Court. This provision states that the act or declaration of a conspirator relating to the
conspiracy, and during its existence, may he given in evidence against the co-conspirator after the conspiracy
is shown by evidence other than such act or declaration. Thus, in order that the admission of a conspirator
may be received against his or her co-conspirators, it is necessary that: (a) the conspiracy be first proved by
evidence other than the admission itself; (b) the admission relates to the common object; and (c) it has been
niade while the declarant was engaged in carrying out the conspiracy.

This exception, however, does not apply in the present case since there was no other piece of evidence
presented, aside from the extrajudicial confession, to prove that Nabilgas conspired with the appellants in
committing the crime charged. Conspiracy cannot be presumed and must be shown as distinctly and
conclusively as the crime itself Nabilgas, in fact, was acquitted by the trial court due to insufficiency of evidence
to prove his participation in the crime.
The requisites to bring a given set of facts under the exceptjon to the res inter alios acta rule were not met
in the present case. Consider:

First, the alleged conspiracy has yet to be established by competent evidence. Except for the whistleblowers'
admissions/statements, no other evidence was adduced to show that Cambe agreed to commit plunder or
any crime. In fact, these statements heavily relied upon do not even establish Cambe's participation in the
scheme or imply any wrongdoing on his part. The PDAF documents made much of by respondents are
tainted with falsehood, as the whistleblowers themselves admitted, and can hardly be viewed to be
independent and credible evidence to establish said conspiracy.

The fact that some of the PDAF Documents Cambe purportedly signed were notarized is of no moment in
light of the admissions, made by the "whistle-blowers" that they themselves did the "notarization." In
his Karagdagang Sinumpaang Salaysay dated September 12, 2013,67 Luy admitted that Napoles' employees
kept the dry seals and notarial registers of several notary publics and used them to "notarize" the PDAF
Documents:

107. T: Nabanggit mo na ang ginagawaga ninyong report of


disbursement ay notarized, saan ninyo ito dinadala para
ipanotarize?

S: Doon din lang sa opisina ng JLN Corporation po.

108. T: Kilala mo ba kung sino ang nagno-notarize ng report of


disbursement na ginagawa ninyo?

S: Bale ipinipirma na naming iyon mga attorney. May dry


seal at stamp siya sa amin at notarial logbook.
109. T: Maaari mo bang linawin kung papaano nangyaring kayo na rin
ang nagnotaryo sa opisina ninyo sa JLN Corporation?

S: Ang tatoo po niyan cry cryon kay Madame JANET LIM NAPOLES
ay kausap na niya ang mga abogadong nagnonotaryo. Mayroong
dry seal, stamp, at notarial book ang mga attorney sa opisina para
kami na ang pumirma at maglagay ng entry sa notarial logbook.

110. T: Maaari mo bang sabihin kung sinu-sino itong mga tinutukoy


mong notary public na inyong ipinipirma at nagpapagamit ng dry
seal sa JLN Corporation?

S: Opo, sina Atty. MARK OLIVEROS, Atty. EDITHA TALABOC, Atty.


RAYMUND TANSIP, at Atty. JOSHUA LAPUZ.68
Hence, the PDAF Documents by themselves are not reliable evidence of Cambe's complicity in the conspiracy
to funnel funds out of the PDAF.

Second, Luy, Sula, and Suas' admissions pertain to their own acts in perpetrating the scheme Napoles
designed. This includes the forging and falsification of official documents to make it appear their issuance
was authorized by legislators and their staff. Any alleged participation of Cambe as related to by the
whistleblowers is hearsay considering that their supposed knowledge as to Cambe's role has Napoles, as
source.

Moreover, Cambe's alleged receipt of P224,512,500.00 for Revilla and 5% for himself from the years 2006
to 2010, which purportedly represent their commissions, "rebates," or "kickbacks" for endorsing Napoles'
NGOs was never corroborated by any independent evidence aside from the whistleblowers' testimonies. The
business ledgers Luy submitted cannot be considered as such independent evidence since they are still
based on Luy's statement. The allegation made by Cunanan of the TRC in his counter-affidavit pertaining to
his phone conversation with Cambe and Revilla, has not been corroborated and does not establish any
wrongdoing on the part of Cambe or Revilla.

Finally, public respondents never refuted the fact that these statements were made after the purported
conspiracy had ceased. Luy, Sula, and Suas only executed their respective admissions/statements
sometime in September 2013, long after they have completed the alleged scheme.

What may be taken as independent evidence gathered during the FIO and the NBI's investigations consisted
of endorsement letters, MOAs, and other documentation. They are of little evidentiary value, however, as
they have been shown to have been falsified and forged by Luy, Sula, and Suas upon Napoles' instructions.
The COA report which found PDAF projects to be inexistent or have never been implemented is also
insufficient as to Cambe, as his alleged participation is predicated on the forged indorsement letters, MOAs,
and other documents. Even the MOAs allegedly executed by the NGOs, the implementing agencies, and
Cambe as representative of Revilla, were admitted to have been "notarized" by Napoles' cohorts, not by
legitimate notaries. Owing to this aberration, the MOAs do not enjoy the presumption of regularity and
cannot be considered to be credible evidence to establish probable cause against Cambe.

Aside from the whistleblowers' own admission of forgery, handwriting experts Azores and Pagui had
evaluated the authenticity of the PDAF documents and had determined that the signatures on the PDAF
documents were not made by one and the same person. The testimonies of these experts cannot simply be
swept aside by mere resort to legal arguments, but must be addressed and refuted by superior contrary
evidence. Until then, the shifted burden to establish the authenticity of the documents rests with public
respondents. The evaluation by the Special Panel of Investigators as to such authenticity would not, in
context, suffice to overturn the expert testimonies of Azores and Pagui since the Special Panel is not experts
in the field of handwriting analysis.

The Ombudsman's selective appreciation of certain critical testimonial evidence is a badge of grave abuse of
discretion. She, for instance, accepted as gospel truth the accusatory statements of Luy, Sula, and Suas
insofar as the alleged participation of Revilla and Catibe in the scam is concerned, but in the same breath
disregarded their admission of forgery and fabrication of the PDAF documents. In fine, the Ombudsman
viewed as true those portions of the whistleblowers' statements which would support the prosecution's
version despite contrary evidence presented by petitioners.

Considering the apparent whimsical and capnctous approach thus taken by the Ombudsman, I submit that
this Court should have exercised its power of judicial review. Tolerating the practice of establishing
probable cause based on forged or questionable documents would expose the criminal justice
system to malicious prosecution. It will create a dangerous precedent. It will encourage unscrupulous
individuals to file trumped up charges based on fictitious, spurious, or manipulated documents. Malicious
lawsuits designed to harass the innocent will proliferat, in clear violation of their rights enshrined by no less
than the Constitution. This, I cannot allow.

To repeat, a preliminary investigation serves to protect the innocent from hasty, and oppressive prosecution
and the state from having to conduct useless, but expensive trials.69 Wrote the Court in Cabahug v. People:

We cannot overemphasize the admonition to agencies tasked with the preliminary investigation and
prosecution of crimes that the very purpose of a preliminary investigation is to shield the innocent rom
precipitate, spiteful and burdensome prosecution. They are duty-bound to avoid, unless absolutely necessary,
open and public accusation of crime not only to spare the innocent the trouble, expense and torment of a
public trial, but also to prevent unnecessary expense on the part of the State for useless and expensive trials.
Thus, when at the outset the evidence cannot sustain a prima facie case or that the existence of
prob ble cause to form a sufficient belief as to the guilt of the accused cannot be ascertained, the
prosecution must desist from inflicting on any person the trauma of going through a trial. (Emphasis
supplied, citation omitted.)
Napoles

Like Revilla and Cambe, Napoles also attributes grave abuse of discretion on the Ombudsman for finding
probable cause for plunder against her, it being her submission that the elements of the crime have: not
been alleged and established. The FIO and NBI complaints, as well as the Joint Resolution have, to her,
failed to establish that the alleged conspiracy was for the common design or purpose of enriching a public
officer or that the proceeds of the PDAF landed in the pockets of any public officer. She points out that the
Joint Resolution repeatedly held that the alleged modusi operandi was geared towards helping her, a private
individual, obtain personal gain. She argues that since it was supposedly her, Napoles, who was enriched in
the alleged conspiracy, then the plunder case is improper.

Assuming, Napoles continues, that she advanced money to Revilla prior to the release of the SARO, then his
monetary gain cannot be considered as coming from the public coffers. Aside from this, Napoles denies
being affiliated with the NGOs involved in the implementation of the PDAF projects and that nowhere in the
documentary evidence adduced was it shown that she received any check from the implementing agencies.

Napoles obviously misinterpreted the charges against her and the trajectory of the Joint Resolution. This
resolution, far from driving home the idea, as Napoles posits, that the conspiracy in question intended to
enrich her, a private individual, clearly stated that the conspiratorial acts were "plainly geared towards a
common goal which was to amass, acquire and accumulate ill-gotten wealth amounting to at least
PhP224,512,500.00."

While I submit that the Court can accord merit to Napoles' assertion respecting the undue reliance of the
Ombudsman on inadmissible vidence, such as the statements and ledgers submitted by Luy, I concur with
the majority that the Ombudsman's finding as to the existence of probable cause to charge Napoles is
substantiated. Her argument that no evidence was presented to show her affiliation to the NGOs and the
implementation of the PDAF-financed projects holds no water. Save for her bare denials, Napoles did
not submit any contrary evidence which would support her claim.

On the contrary, the Ombudsman, through the efforts of the FIO and the NBI, was able to secure the
statements of Napoles' former employees, to independently establish how she set-up NGOs70and
colluded with people in and out of the government to acquire the proceeds of the PDAF of various
legislators. Notably, an employee, Mary Arlene Baltazar, categorically testified having been instructed by
Napoles to rorge the signatures of directors in her NGO, as well as the signatures of listed beneficiaries in
the PDAF-funded projects, and to shred documents related to the PDAF scheme. Counter-affidavits of the
public officers from the implementing agencies involved also admitted having coordinated with Napoles in
processing the projects.

Napoles' claim that the NBI and FIO Complaints, purportedly lacking as they do certain data, e.g., dates and
places, are insufficient in form and in substance to support a criminal charge for plunder is specious. As
correctly pointed out by the OOMB, all the integral parts of a valid complaint, as required by Section 6, Rule
110 of the Rules of Court, quoted below are explicitly indicated:

Section 6. Sufficiency of complaint or information. - A complaint or information is sufficient if it states the


name of the accused; the designation of the offense given by the statute; the acts or omissions complained
of as constituting the offense; the name of the offended party; the approximate date of the commission of the
offense; and the place where the offense was committed.

When an offense is committed by more than one person, all of them shall be included in the complaint or
information. (6a)
A cursory reading of the NBI and FIO complaints would show substantial compliance with the above
provision. All the accused were specifically named, the designation of the offenses charged clearly indicated,
and the acts allegedly constituting the offenses and where they were committed enumerated. Considering
the offenses charged, it was correctly indicated that the State is the offended party. As for the date of when
the offenses were committed, it is sufficient if, as here, the approxim te period of commission, i.e., span of
four years starting from and ending on, is provided, the exact date of the commission of the crime not being
an element in either Plunder or violation of Section 3(e) of RA 3019.

De Asis

The crux of De Asis' petition resembles that of Napoles.

The assailed joint resolution and order, De Asis asserts, did not find KPMFI-of which he is supposed to be
president-as among te NGOs used as a conduit in the PDAF Scam. A finding of probable caue against him, in
spite of KPMFI's alleged non-involvement, is, therefore, without factual and legal basis since the SARO itself
controverted his alleged involvement.

Contrary to De Asis' posture, the NBI Complaint mentioned KPMFI as one of those NGOs that served as
conduits in the implementation of Revilla's 2006-2012 PDAF. While the assailed joint resolution and order
did not indeed mention KPMFI as one of the conduit NGOs, the COA Report alleged that verification is still
ongoing as to it since its SARO was only released in March 2012.

Even assuming, as De Asis urges, that he had no participation in the incorporation of KPMFI, there remains
the fact that his acts cont ibuted to the furtherance of the illegal scheme. His admitted participatipn aided
Napoles and her cahoots to illegally acquire ill-gotten wealth at the expense of the public. His acts alone in
receiving and depositing checks in NGO bank accounts, albeit generally harmless, enabled Napoles to
withdraw the money and funnel the funds from the PDAF.

It bears stressing that De Asis, in his counter-affidavit, admitted picking up checks for Napoles' NGOs as he
was "instructed" to do so. Yet, De Asis avers that the performance of his duties as Napoles' driver and
messenger does not establish criminal intent. He maintains that the mere act of performing his routine
duties can hardly be construed as overt criminal acts of plunder or a willful participation on his part to
commit the same. Moreover, he had no knowledge of the purpose for which he performed his duties and, as
far as he was concerned, he merely did his job in good faith.

I am not persuaded.
The term good faith is commonly descriptive of that state of mind denoting honesty of intention, and
freedom from knowledge of circumstances which ought to put the holder upon inquiry.71 Good faith is
actually a matter of intention. Albeit internal, a person's intention is judged by relying not on his own
protestations of good faith, which is self-serving, but on evidence of his conduct and outward acts.72

Applying the foregoing tenets, the Ombudsman aptly point$d out the inconsistency of De Asis' acts with the
principle of good faith. Routinely withdrawing and delivering huge sums of cash for Napoles and producing
fictitious list of beneficiaries and liquidation reports would make a reasonable person doubt the legitimacy of
his employer's business. De Asis, as Napoles' employee, possesses knowledge of facts and circumstances,
which can put one wary of his employer's nature of business. Possessing this knowledge while continuously
participating in the illegal scheme, even if instructed by his employer, is tantamount to acquiescence in the
illegal act, thus belying his bona fide claim.

Lim

In like manner, I concur with the majority that probable cause exists against petitioner Lim.

While he was not included as respondent in the FIO complaint, Lim's name, along with four others, was
mentioned as one of those who would deliver the money from the office of JLN in Pasig City to Napoles'
house.73 The Ombudsman had, thus, a valid reason to assume Lim's likely involvement in criminal activities
and to proceed against him.

Lim contends that Ombudsman, in charging him with Plunder, proceeded on the theory she erroneously
deduced from the ensuing accounts of Luy and Suas, that he prepares and delivers the kickbacks and
commissions to the concerned lawmakers, thus:

4.1 Kakausapin ni Gng. Napoles ang lawmaker na makakapagbigay ng pondo, at pagkakasunduan nila ang
komisyon o kickback na dapat matanggap ng kausap niya. Alam namin ito dahil sinasama niya kami noon sa
mga ilang meetings niya sa mga lawmakers, at ito rin ang kinagawidn na sa mga sumunod niyang mga
transaksyon. At nakokompirma naming ito tuwing nag-uutos si Gng. Napoles sa amin na maghanda o
magpadala ng pera para sa mga nakausap niya. Ang kasama naming na laging naghahanda ng pera ay sina
Ronald John Lim at x x x De Asis.
According to Lim, there is no allegation that he delivered kickbacks and commissions to the lawmakers. Luy
and Suas merely stated that he (Lim) would usually prepare the money, a scenario different ifrom the
concept of being involved in the delivery of money.

This contention is bereft of merit.

While preparation or segregation and the actual delivery arseparate acts, they are interconnected with a
common objective. It is immaterial, thus, whether Lim only prepared or segregated the money, actually
delivered it or both. The fact is, there is probable cause to believe that he performed a role in the
consummation of the crime of Plunder.

Further, evidence shows that there is probable cause to believe that Lim cooperated in order to divert the
PDAF to their own poqkets. By rendering assistance in the delivery of money, Lim is deemed to have
conspired in the illegal transaction. Under these circumstances, Lim is as much liable as the principal
because of his overt and indispensable cooperation in perpetuating the scam.

At this juncture, it is necessary to state that Revilla is not the only named public officer involved in this
issue. There are others against whom the Ombudsman found probable cause. Thus, Lim, being a private
individual, may be charged with Plunder, there being probable cause to believe that he acted in concert with
some public officers.

Relampagos, Nuez, Paule, Bare

Petitioners Relampagos, Nuez, Paule and Bare assail the November 13, 2015 and May 13, 2015 Resolutions
of the Sandiganbayan that sustained the finding of probable cause against them in Criminal Case Nos. SB-
14-CRM-0268, 0269, 0272, 0273, 0275, 0276, 0279, and 0280. In particular, they maintain that, contrary
to the graft court's affirmatory findings, undue haste did not characterize the issuance of the concerned
SAROs,74 which their office is not in charge of processing in the first place. Petitioners also argue that Luy
himself admitted that he is not aware of any "kickbacks" given to DBM officers and employees. Thus, for the
petitioners, the Sandiganbayan committed grave abuse of discretion in remaining adamant in its refusal to
dismiss the foregoing criminal cases against them.

I submit that the issues raised by the parties are ripe for adjudication and easily verifiable by the
submissions of the parties. To wait for trial will only unnecessarily prolong the disposition of the case. On
this note, Sec. 6, Rule 112 of the Rules ofCriminal Procedure provides that a judge "may immediately
dismiss the case if the evidence on record clearly1 fails to establish probable cause."

As borne by the records, the Ombudsman initially found probable cause to charge petitioners
Relampagos, et al. for sixteen (16) counts of violation of Sec. 3 (e), RA 3019 on account of Luy's testimony
that petitioners are Napoles' contact in the DBM. Yet, even Luy himself twice admitted during the September
12, 2013 Senate Blue Ribbon Committee that petitioners did not receive any part of the PDAF, viz:

The Chairman: So, ang hatian - sa legislator, sa line agency na nagimplement. Mr. Luy: Yes, Po.

The Chairman: DBM mayroon ba? Mr. Luy: 'Yan ang hindi ko po alam, ang DBM.

xxxx

Sen. Cayetano: So far ang sinabi mo, congressman, senador, head of agency. Sa DBM, may ibinibigay din?
Mr. Luy: Wala po akong maalala na-o wala po akong nakita na -75
The fact that DBM officers and employees did not partake in the PDAF is likewise shown by Suas' testimony
when she alieged the following breakdown of the supposed "kickbacks" on the PDAF Scam:

T: Maaari mo bang ipaliwanag ang ibig mong sabihin na ang pondo na sa


halip napunta sa dapat na beneficiaries ay napunta kay Madame
Jenny at sa mga senador?

S: Dahil sa ang pondo mula sa PDAF na dapat mapunta sa mga proyekto


ay pinaghahatian. Limampung porsyento (50%) sa mambabatas,
limang porsyento (5%) sa Chief of Staff ng mambabatas, sampung
porsyento (10%) sa implementing agency at ang natitirang tatlumpu't
limang porsyento (35%) ay napupunta kay Madame Jenny.76
The dearth of any allegation as to any DBM employee's share in the PDAF renders their participation in the
scheme to divert the fuhd highly unlikely and improbable.

The absurdity of dragging Relampagos, et al. in the PDAF scam becomes all the more obvious if one
considers what DBM Director Carmencita Delantar told the Senate Blue Ribbon Committee, i.e. that it is her
office, not petitioners', that processes the issuance of the SAROs. Some excerpts of that testimony:

Q: I have a PDAF processed flow chart. It's a processed flow for 2007 to 2009. This is one of the attachments
of Relampagos submitted for probable cause. You read it and confirm if this is really the process. Go read it
silently. Just tell us if that is really the process flow. x x x

A: x x x In the 5th step here mentioned, it read, ROCS BMBs, this refers to the Budget and Management
Bureaus of the department concern[ed], forwards the SARO NCA letter to OSEC for signature and in the
absence of the Secretary or the principal, it goes to the Office of the Undersecretary for Operations for
signature and are hand carried by the Director. Your honor, this is true. Why?

xxxx

Q: So, you confirm also that you hand carry the SARO? A: x x x yes xxx
Q: So when, you hand carried the SARO, it's a finished product, only waiting the signature [of the]
Secretary or the Usec x x x?

A: Yes, Your Honor. Usually, Your Honor, even if the Secretary is around, we have a Supervising Senior
Official. So, it is one of the [USEC]. So, we forward and submit it to the [USEC] in-charge of operations.

Q: You mean to say that your bureau does everything. I mean, all the processing is under your
bureau?

A: Your Honor. not for all because we handle the soft.

xxxx

Q: For the soft projects, your bureau does everything and there is nothing more to do by any other
office except the Office of the Secretary of the Office of Usec who signs?

A: Yes, in a sense, Your Honor.

Q: What do you mean, yes, in a sense?

A: What we were trying to say, Your Honor, because it would also be at the discretion of the Secretary if he
would want through a re-organization to transfer it to the other bureau.

Q: No, I mean,for these ten (10)? A: Yes, Your Honor.77


Petitioners Relampagos, et al. could, therefore, not be faulted let alone indicted for what the Ombudsman
perceived to be hasty "processing" of the SAROs in question.

What is more, the allegation of "undue haste" was loosely hinged on the supposed lack of endorsement from
the IAs before the issuance of the SAROs. However, the GAAs for FYs 2007, 2008, and 2009 already
dispensed with this requirement, when they provided a menu of programs/projects as well as the list of IAs
authorized to implement them. DBM Circular Letter No. 2015-1, s. 2015, in fact did away with the
endorsement of the IA as a sine qua non requirement before a SARO issues. It provides:

1. This Circular is being issued to clarify the application of NBC No. 476 dated September 20, 2001 to PDAF
releases for FY 2005 and ears thereafter in view of the related disallowances and cases filed agAinst DBM
officials and employees.

2. In this regard, this Department hereby clarifies that beginning FY 2005 and in the succeeding fiscal years,
all PDAF allocation were directly released to implementing agencies pursuant to the express provisioris of
Special Provision of the FY 2005 [GAA] which already included a list of programs, projects and [IAs] (PDAF
menu) upon which the requests for release of funds were evaluated as to consistency with the prognims,
projects and [IAs] listed in the PDAF menu, to wit:

FY 2005 GAA and FY 2006 reenacted budget [FY 2007, 2008, 2009, 2010]

1. Use and Release of the Fund: The amount appropriated herein shall be used to fund priority programs and
projects under the ten point agenda of the national government and shall be released directly to the [IAs]
as indicated hereunder, to wit:

xxxx

FY 2010 GAA

1. Use and Release of the Fund: The amount appropriated herein hall be used to fund priority programs and
projects of the national government and shall be released directly to the [IAs] as indicated hereunder,
to wit:

xxxx

3. Consequently, the requirement for the submission of project profile and endorsement by the [IAs]
previously required under NBC No. 476, is already effectively superseded by the enactment of the FY 2005
GAA. The submission of project profile and endorsement by the [IAs] were no longer necessary considering
that the details required in the project profiles land endorsements under NBC No. 476 were already provided
for in the PDAF menu under the GAA for FYs 2005 and succeeding fiscal years.78
As a related point, it bears to stress that the SAROs were issued and released only four (4) to nine (9) days
following the DBM's rec ipt of the requests for their issuance. The DBM Citizens' Charter, however, provides
that the total processing time of such request should be for less than 10 hours. Clearly then, if petitioners
were to be censured, it shoud be for tardiness, not for acting with "undue haste."

Final Note

Without belaboring the obvious, the presumption of innocence, and all rights associated with it, remains
even at the preliminary investigatlon stage. Thus, where the lack of competent evidence against the
respondents is clear from the records, then complaints against them must be dismissed. Else, the protective
purpose of a preliminary investigation becomes illusory.

With the foregoing disquisition, I find it unnecessary to discuss the other issues raised in the consolidated
petitions.

IN LIGHT OF THE FOREGOING, I cast my vote, thus:

1. To DISMISS the petitions in G.R. Nos. 212014-15, 213477-78, 213532-33, and 213536-37 for lack
of merit.

2. To GRANT the petitions in G.R. Nos. 212694-95, 212794-95 and 218744-59 and REVERSE and SET
ASIDE the assailed Joint Resolution and Joint Order issued by the Ombudsman on March 28, 2014
and June 4, 2014, respectively insofar as they find probable cause to indict petitioners Sen. Ramon
"Bong" Revilla, Jr., Atty. Richard A. Cambe, Mario L. Relampagos, Rosario Salameda Nuez, Lalaine
Narag Paule, and Marilou Dialino Bare for the crimes indicated therein.

Accordingly, I vote to DISMISS Criminal Case Nos. SB-14CRM 0240 (for Plunder) and SB 14 CRM
0263 to 0282, inclusive, (for Violation of Section 3[e] of RA 3019) against Sen. Ramon "Bong" Revilla,
Jr. and Atty. Richard A. Cambe before the Sandiganbayan.

Moreover, I vote to DISMISS Criminal Case Nos. SB 14CRM-0268, 0269, 0272, 0273, 0275, 0276,
0279 and 0280 (for Violation of Section 3[e] of RA 3019) against accused Mario L. Relampagos,
Rosario Salameda Nuez, Lalaine Narag Paule and Marilou Dialino Bare before the Sandiganbayan.

3. In light of my vote for the nullification in G.R. Nos. 212694 95 ofthe assailed March 28, 2014 Joint
Resolution and the affirmatory June 4, 2014 Joint Order of the Ombudsman, insofar it found probable
cause to indict petitioner Sen. Ramon "Bong" Revilla, Jr. for Plunder (1 Count) and violation of Section
3 (e) of R.A. 3019 (16 Counts) and recommended the immediate filing of corresponding In onnations
with the Sandigabayan, I vote to DISMISS the petition in G.R. Nos. 212427-28.

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