ENBANC

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

xx

DECISION

ABAD,J.:

OnNovember24,2009,thedayafterthegruesomemassacreof57menandwomen,includingsomenewsreporters,thenPresident
[1]
GloriaMacapagalArroyoissuedProclamation1946, placingtheProvincesofMaguindanaoandSultanKudaratandtheCityof
Cotabato under a state of emergency. She directed the Armed Forces of the Philippines (AFP) and the Philippine National Police
(PNP)toundertakesuchmeasuresasmaybeallowedbytheConstitutionandbylawtopreventandsuppressallincidentsoflawless
violenceinthenamedplaces.

[2]
Three days later or on November 27, President Arroyo also issued Administrative Order 273 (AO 273) transferring
supervisionoftheAutonomousRegionofMuslimMindanao(ARMM)fromtheOfficeofthePresidenttotheDepartmentofInterior
andLocalGovernment(DILG).But,duetoissuesraisedovertheterminologyusedinAO273,thePresidentissuedAdministrative
[3]
Order273A(AO273A)amendingtheformer,bydelegatinginsteadoftransferringsupervisionoftheARMMtotheDILG.

Claiming that the Presidents issuances encroached on the ARMMs autonomy, petitioners Datu Zaldy Uy Ampatuan, Ansaruddin
[4]
Adiong,andRegieSahaliGenerale,allARMMofficials, filedthispetitionforprohibitionunderRule65.Theyallegedthatthe
proclamation and the orders empowered the DILG Secretary to take over ARMMs operations and seize the regional governments
powers,inviolationoftheprincipleoflocalautonomyunderRepublicAct9054(alsoknownastheExpandedARMMAct)andthe
Constitution.ThePresidentgavetheDILGSecretarythepowertoexercise,notmerelyadministrativesupervision,butcontrolover
[5]
theARMMsincethelattercouldsuspendARMMofficialsandreplacethem.

Petitioner ARMM officials claimed that the President had no factual basis for declaring a state of emergency, especially in the
ProvinceofSultanKudaratandtheCityofCotabato,wherenocriticalviolentincidentsoccurred.Thedeploymentoftroopsandthe
[6]
takingoveroftheARMMconstitutesaninvalidexerciseofthePresidentsemergencypowers. PetitionersaskedthatProclamation
1946 as well as AOs 273 and 273A be declared unconstitutional and that respondents DILG Secretary, the AFP, and the PNP be
enjoinedfromimplementingthem.

[7]
Initscommentfortherespondents, theOfficeoftheSolicitorGeneral(OSG)insistedthatthePresidentissuedProclamation
[8]
1946,nottodeprivetheARMMofitsautonomy,buttorestorepeaceandorderinsubjectplaces. She issued the proclamation
[9]
pursuanttohercallingoutpower asCommanderinChiefunderthefirstsentenceofSection18,ArticleVIIoftheConstitution.
[10]
The determination of the need to exercise this power rests solely on her wisdom. She must use her judgment based on
intelligence reports and such best information as are available to her to call out the armed forces to suppress and prevent lawless
violencewhereverandwhenevertheserearedtheiruglyheads.
Ontheotherhand,thePresidentmerelydelegatedthroughAOs273and273AhersupervisorypowersovertheARMMtothe
DILGSecretarywhowasheralteregoanyway.TheseordersdidnotauthorizeatakeoveroftheARMM.Theydidnotgivehim
[11]
blanketauthoritytosuspendorreplaceARMMofficials. Thedelegationwasnecessarytofacilitatetheinvestigationofthemass
[12] [13]
killings. Further,theassailedproclamationandadministrativeordersdidnotprovidefortheexerciseofemergencypowers.

Althoughnormalcyhasinthemeantimereturnedtotheplacessubjectofthispetition,itmightberelevanttoruleontheissuesraised
inthispetitionsincesomeactsdonepursuanttoProclamation1946andAOs273and273Acouldimpactontheadministrativeand
criminalcasesthatthegovernmentsubsequentlyfiledagainstthosebelievedaffectedbysuchproclamationandorders.

TheIssuesPresented

Theissuespresentedinthiscaseare:

1.WhetherornotProclamation1946andAOs273and273AviolatetheprincipleoflocalautonomyunderSection16,Article
XoftheConstitution,andSection1,ArticleVoftheExpandedARMMOrganicAct

2.WhetherornotPresidentArroyoinvalidlyexercisedemergencypowerswhenshecalledouttheAFPandthePNPtoprevent
andsuppressallincidentsoflawlessviolenceinMaguindanao,SultanKudarat,andCotabatoCityand

3.WhetherornotthePresidenthadfactualbasesforheractions.

TheRulingsoftheCourt
 Wedismissthepetition.

One.Theclaimofpetitionersthatthesubjectproclamationandadministrativeordersviolatetheprincipleoflocalautonomyis
anchoredontheallegationthat,throughthem,thePresidentauthorizedtheDILGSecretarytotakeovertheoperationsoftheARMM
andassumedirectgovernmentalpowersovertheregion.

But,inthefirstplace,theDILGSecretarydidnottakeovercontrolofthepowersoftheARMM.Afterlawenforcementagents
tookrespondentGovernorofARMMintocustodyforallegedcomplicityintheMaguindanaomassacre,theARMMViceGovernor,
petitionerAnsaruddinAdiong,assumedthevacatedpostonDecember10,2009pursuanttotheruleonsuccessionfoundinArticle
[14]
VII, Section 12, of RA 9054. In turn, Acting Governor Adiong named the then Speaker of the ARMM Regional Assembly,
[15]
petitionerSahaliGenerale,ActingARMMViceGovernor. Inshort,theDILGSecretarydidnottakeovertheadministrationor
operationsoftheARMM.

Two.PetitionerscontendthatthePresidentunlawfullyexercisedemergencypowerswhensheorderedthedeploymentofAFP
[16]
andPNPpersonnelintheplacesmentionedintheproclamation. Butsuchdeploymentisnotbyitselfanexerciseofemergency
powersasunderstoodunderSection23(2),ArticleVIoftheConstitution,whichprovides:

SECTION23.xxx(2)Intimesofwarorothernationalemergency,theCongressmay,bylaw,authorizethePresident,fora
limitedperiodandsubjecttosuchrestrictionsasitmayprescribe,toexercisepowersnecessaryandpropertocarryoutadeclared
nationalpolicy.UnlesssoonerwithdrawnbyresolutionoftheCongress,suchpowersshallceaseuponthenextadjournmentthereof.

ThePresidentdidnotproclaimanationalemergency,onlyastateofemergencyinthethreeplacesmentioned.Andshedidnot
actpursuanttoanylawenactedbyCongressthatauthorizedhertoexerciseextraordinarypowers.Thecallingoutofthearmedforces
topreventorsuppresslawlessviolenceinsuchplacesisapowerthattheConstitutiondirectlyvestsinthePresident.Shedidnotneed
acongressionalauthoritytoexercisethesame.

Three.ThePresidentscallonthearmedforcestopreventorsuppresslawlessviolencespringsfromthepowervestedinher
[17]
underSection18,ArticleVIIoftheConstitution,whichprovides.

SECTION18.ThePresidentshallbetheCommanderinChiefofallarmedforcesofthePhilippinesandwheneveritbecomes
necessary,hemaycalloutsucharmedforcestopreventorsuppresslawlessviolence,invasionorrebellion.xxx

[18]
WhileitistruethattheCourtmayinquireintothefactualbasesforthePresidentsexerciseoftheabovepower, itwould
[19]
generallydefertoherjudgmentonthematter.AstheCourtacknowledgedinIntegratedBarofthePhilippinesv.Hon.Zamora, it
isclearlytothePresidentthattheConstitutionentruststhedeterminationoftheneedforcallingoutthearmedforcestopreventand
suppress lawless violence. Unless it is shown that such determination was attended by grave abuse of discretion, the Court will
accordrespecttothePresidentsjudgment.Thus,theCourtsaid:

Ifthepetitionerfails,bywayofproof,tosupporttheassertionthatthePresidentactedwithoutfactualbasis,thenthisCourt
cannot undertake an independent investigation beyond the pleadings.The factual necessity of calling out the armed forces is not
easilyquantifiableandcannotbeobjectivelyestablishedsincemattersconsideredforsatisfyingthesameisacombinationofseveral
factors which are not always accessible to the courts. Besides the absence of textual standards that the court may use to judge
necessity, information necessary to arrive at such judgment might also prove unmanageable for the courts. Certain pertinent
information might be difficult to verify, or wholly unavailable to the courts. In many instances, the evidence upon which the
Presidentmightdecidethatthereisaneedtocalloutthearmedforcesmaybeofanaturenotconstitutingtechnicalproof.

On the other hand, the President, as CommanderinChief has a vast intelligence network to gather information, some of
whichmaybeclassifiedashighlyconfidentialoraffectingthesecurityofthestate.Intheexerciseofthepowertocall,onthespot
decisionsmaybeimperativelynecessaryinemergencysituationstoavertgreatlossofhumanlivesandmassdestructionofproperty.
Indeed,thedecisiontocalloutthemilitarytopreventorsuppresslawlessviolencemustbedoneswiftlyanddecisivelyifitwereto
[20]
haveanyeffectatall.xxx.

Here,petitionersfailedtoshowthatthedeclarationofastateofemergencyintheProvincesofMaguindanao,SultanKudaratand
CotabatoCity,aswellasthePresidentsexerciseofthecallingoutpowerhadnofactualbasis.Theysimplyallegedthat,sincenotall
areas under the ARMM were placed under a state of emergency, it follows that the take over of the entire ARMM by the DILG
[21]
Secretaryhadnobasistoo.

But,apartfromthefactthattherewasnosuchtakeovertobeginwith,theOSGalsoclearlyexplainedthefactualbasesforthe
Presidentsdecisiontocalloutthearmedforces,asfollows:

TheAmpatuanandMangudadatuclansareprominentfamiliesengagedinthepoliticalcontrolofMaguindanao.Itisalsoa
knownfactthatbothfamilieshaveanarsenalofarmedfollowerswhoholdelectivepositionsinvariouspartsoftheARMMandthe
restofMindanao.

ConsideringthefactthattheprincipalvictimsofthebrutalbloodshedaremembersoftheMangudadatufamilyandthemain
perpetratorsofthebrutalkillingsaremembersandfollowersoftheAmpatuanfamily,boththemilitaryandpolicehadtoprepare
for and prevent reported retaliatory actions from the Mangudadatu clan and additional offensive measures from the Ampatuan
clan.

xxxx

TheAmpatuanforcesareestimatedtobeapproximatelytwothousandfourhundred(2,400)persons,equippedwithabout
twothousand(2,000)firearms,aboutfourhundred(400)ofwhichhavebeenaccountedfor.xxx

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

Apartfromtheirownpersonalforces,bothclanshaveSpecialCivilianAuxiliaryArmy(SCAA)personnelwhosupportthem:
aboutfivehundred(500)fortheAmpatuansandthreehundred(300)fortheMangudadatus.

Whatcouldbeworsethanthearmedclashoftwowarringclansandtheirarmedsupporters,especiallyinlightofintelligence
reportsonthepotentialinvolvementofrebelarmedgroups(RAGs).

OneRAGwasreportedtohaveplannedanattackontheforcesofDatuAndalAmpatuan,Sr.toshowsupportandsympathy
forthevictims.ThesaidattackshallworsentheageoldterritorialdisputebetweenthesaidRAGandtheAmpatuanfamily.

xxxx

On the other hand, RAG faction which is based in Sultan Kudarat was reported to have received three million pesos
(P3,000,000.00) from Datu Andal Ampatuan, Sr. for the procurement of ammunition. The said faction is a force to reckon with
becausethegroupiswellcapableoflaunchingaseriesofviolentactivitiestodiverttheattentionofthepeopleandtheauthorities
awayfromthemultiplemurdercase.xxx

Inaddition,twootherfactionsofaRAGarelikelytosupporttheMangudadatufamily.TheCotabatobasedfactionhasthe
strengthofaboutfivehundred(500)personsandthreehundredseventytwo(372)firearmswhiletheSultanKudaratbasedfaction
has the strength of about four hundred (400) persons and three hundred (300) firearms and was reported to be moving towards
[22]
MaguindanaotosupporttheMangudadatuclaninitsarmedfightagainsttheAmpatuans.

Inotherwords,theimminenceofviolenceandanarchyatthetimethePresidentissuedProclamation1946wastoogravetoignore
andshehadtoacttopreventfurtherbloodshedandhostilitiesintheplacesmentioned.Progressreportsalsoindicatedthattherewas
[23]
movement in these places of both highpowered firearms and armed men sympathetic to the two clans. Thus, to pacify the
peoplesfearsandstabilizethesituation,thePresidenthadtotakepreventiveaction.Shecalledoutthearmedforcestocontrolthe
proliferation of loose firearms and dismantle the armed groups that continuously threatened the peace and security in the affected
places.

Notably,thepresentadministrationofPresidentBenignoAquinoIIIhasnotwithdrawnthedeclarationofastateofemergencyunder
[24]
Proclamation 1946. It has been reported that the declaration would not be lifted soon because there is still a need to disband
private armies and confiscate loose firearms. Apparently, the presence of troops in those places is still necessary to ease fear and
tensionamongthecitizenryandpreventandsuppressanyviolencethatmaystillerupt,despitethepassageofmorethanayearfrom
thetimeoftheMaguindanaomassacre.

Sincepetitionersarenotabletodemonstratethattheproclamationofstateofemergencyinthesubjectplacesandthecalling
out of the armed forces to prevent or suppress lawless violence there have clearly no factual bases, the Court must respect the
Presidentsactions.

WHEREFORE,thepetitionisDISMISSEDforlackofmerit.

SOORDERED.

ROBERTOA.ABAD
AssociateJustice

WECONCUR:

RENATOC.CORONA
ChiefJustice

ANTONIOT.CARPIOCONCHITACARPIOMORALES
AssociateJusticeAssociateJustice

PRESBITEROJ.VELASCO,JR.ANTONIOEDUARDOB.NACHURA
AssociateJusticeAssociateJustice

TERESITAJ.LEONARDODECASTROARTUROD.BRION
AssociateJusticeAssociateJustice

DIOSDADOM.PERALTALUCASP.BERSAMIN
AssociateJusticeAssociateJustice

MARIANOC.DELCASTILLOMARTINS.VILLARAMA,JR.
AssociateJusticeAssociateJustice

JOSEPORTUGALPEREZJOSECATRALMENDOZA
AssociateJusticeAssociateJustice


MARIALOURDESP.A.SERENO
AssociateJustice

CERTIFICATION

PursuanttoSection13,ArticleVIIIoftheConstitution,itisherebycertifiedthattheconclusionsintheaboveDecisionhad
beenreachedinconsultationbeforethecasewasassignedtothewriteroftheopinionoftheCourt.

RENATOC.CORONA
ChiefJustice

[1]
Rollo,p.34.
[2]
Id.at36.
[3]
Id.at80.
[4]
Ampatuan,AdiongandSahaliGeneralewere,respectively,theGovernor,ViceGovernorandSpeakeroftheLegislativeAssemblyoftheARMMatthattime.
[5]
Rollo,pp.1417.
[6]
Id.at2022.
[7]
Id.at63.
[8]
Id.at85,87,95.
[9]
Id.at98.
[10]
Id.at76.
[11]
Id.at95.
[12]
Id.at78.
[13]
Id.at110.
[14]
SEC. 12.Succession to Regional Governorship in Cases of Temporary Incapacity.In case of temporary incapacity of the regional Governor to perform his duties on account of
physicalorlegalcauses,orwhenheisonofficialleaveofabsenceorontraveloutsidetheterritorialjurisdictionoftheRepublicofthePhilippines,theRegionalViceGovernor,orifthere
be none or in case of his permanent or temporary incapacity or refusal to assume office, the Speaker of the RegionalAssembly shall exercise the powers, duties and functions of the
RegionalGovernorasprescribedbylawenactedbytheRegionalAssemblyorintheabsencethereof,bythepertinentprovisionsofRepublicAct7160ortheLocalGovernmentCodeof
1991.
[15]
http://services.inquirer.net/print/print.php?article_id=20100707279759.
[16]
Rollo,p.22.
[17]
SeeSANLAKASv.ExecutiveSecretaryReyes,466Phil.482,509510(2004).
[18]
Lacsonv.Sec.Perez,410Phil.78,93(2001).
[19]
392Phil.618,635(2000).
[20]
Id.at643644.
[21]
Rollo,pp.2021.
[22]
Id.at101105.
[23]
Id.at105.
[24]
http://www.abscbnnews.com/video/nation/regions/11/23/10/stateemergencymaguindanaostays
http://www.sunstar.com.ph/manila/localnews/aquinostateemergencymaguindanaostays
http://www.bomboradyo.com/index.php/news/topstories/29331stateofemergencysacmindanaomananatili http://www.zambotimes.com/archives/26011Stateofemergencyin
Maguindanao
remains.html.