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E N B A N C

[G .R . N o . 1 3 8 5 7 0 . O c to b e r 1 0 , 2 0 0 0 ]

B A Y A N

(B a g o n g

A ly a n s a n g

M akabayan), a ( Ig le s ia

JU N K

V FA

M O V E M E N T,

B IS H O P

TO M A S

M IL L A M E N A

F i lip in a

In d e p e n d ie n t e ) ,

B IS H O P E L M E R B O L O C A N ( U n it e d C h u r c h o f C h r is t o f t h e P h il.) , D R . R E Y N A LD O L E G A S C A , M D , K IL U S A N G M A Y O M A M B U B U K ID N G

P IL IP IN A S , K IL U S A N G th e P U B L IC

U N O , G A B R IE L A , P R O L A B O R , a n d LA W R O N A LD O C E N T E R , p e t it io n e r s , ZA M O R A , S IA Z O N , G E N . F O R E IG N D E FE N S E A LE X A N D E R

IN T E R E S T S E C R E TA R Y

v s . E X E C U T IV E A F F A IR S S E C R E TA R Y

S E C R E TA R Y O R LA N D O

D O M IN G O M E R C A D O ,

B R IG .

A G U IR R E , S E N A T E F R A N K L IN R O D O LFO

P R E S ID E N T M A R C E L O S E N A TO R and B LA S

FE R N A N , S E N A TO R O P LE , S E N A TO R TA TA D ,

D R IL O N , B IA Z O N ,

S E N A TO R

F R A N C IS C O

re s p o n d e n ts .

[G .R . N o . 1 3 8 5 7 2 . O c to b e r 1 0 , 2 0 0 0 ]

P H IL IP P IN E

C O N S T IT U T IO N B . G A R C IA , R A M O N

A S S O C IA T IO N , A M A D O G A T A .

IN C .( P H IL C O N S A ) , C A M IL O L .

E X E Q U IE L S A B IO ,

IN C IO N G ,

A N D

G O N Z A L E S , p e t it io n e r s ,

vs. H O N .

R O N A LD O M E R C A D O , D O M IN G O

B . Z A M O R A , a s E x e c u t iv e S e c r e t a r y , H O N . O R L A N D O as L. S e c re ta ry S IA Z O N , of J R ., N a t io n a l as D e fe n s e , and of H O N . F o r e ig n

S e c re ta ry

A f f a ir s , r e s p o n d e n t s .

[G .R . N o . 1 3 8 5 8 7 . O c to b e r 1 0 , 2 0 0 0 ]

T E O F IS T O

T .

G U IN G O N A ,

J R .,

R A U L

S .

R O C O ,

and

S E R G IO

R . B .

O S M E A III, p e t it io n e r s , v s . J O S E P H E . E S T R A D A , R O N A L D O

Z A M O R A , D O M IN G O M A R C E LO

L . S IA Z O N , J R . , O R L A N D O

B . M E R C A D O , F. O P LE

B . F E R N A N , F R A N K L IN

M . D R IL O N , B L A S

a n d R O D O L F O G . B IA Z O N ,r e s p o n d e n t s .

[G .R . N o . 1 3 8 6 8 0 . O c to b e r 1 0 , 2 0 0 0 ]

IN T E G R A T E D B A R O F T H E P H IL IP P IN E S , R e p r e s e n t e d b y it s N a t io n a l P r e s id e n t , E J E R C IT O Jose A g u ila h is G r a p il o n , p e t it io n e r s , c a p a c it y as vs. JO S E P H of

E S T R A D A , in

P r e s id e n t , R e p u b lic

t h e P h ilip p in e s , a n d H O N . D O M IN G O

S IA Z O N , in h is c a p a c it y a s

S e c r e t a r y o f F o r e i g n A f f a ir s , r e s p o n d e n t s .

[G .R . N o . 1 3 8 6 9 8 . O c to b e r 1 0 , 2 0 0 0 ]

J O V IT O

R .

S A LO N G A ,

W IG B E R T O

TA A D A ,

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A V E N C E A , R O LA N D O S O C O R R O I. D IO K N O ,

S IM B U L A N , P A B L IT O A G A P IT O A .

V . S A N ID A D , M A . JO K E R P .

A Q U IN O ,

A R R O Y O , F R A N C IS C O K IL O S B A Y A N , B R O TH E R H O O D ,

C . R IV E R A

J R ., R E N E O F

A .V . S A G U IS A G , FO R IN C . TH E O F B . G .

M O V E M E N T IN T E G R IT Y vs . TH E

A TTO R N E Y S N A T IO N A L IS M , S E C R E TA R Y , S E C R E TA R Y M A R C E LO

A N D

( M A B IN I) , p e t it io n e r s , S E C R E TA R Y N A T IO N A L FE R N A N , O F

E X E C U T IV E A F F A IR S , TH E

F O R E IG N

D E FE N S E , S E N A TO R

S E N A TE F.

P R E S ID E N T S E N A TO R

B LA S

O P LE ,

R O D O LFO

B IA Z O N , A N D A L L O T H E R P E R S O N S A C T IN G S U P E R V IS IO N , D IR E C T IO N , A N D

T H E IR C O N T R O L , IN R E L A T IO N

IN S T R U C T IO N

T O T H E V IS IT IN G

F O R C E S A G R E E M E N T (V F A ), re s p o n d e n ts .

D E C I S I O N
B U E N A , J .:

C o n f r o n t in g t h e C o u r t f o r r e s o lu t io n in t h e in s t a n t c o n s o lid a t e d p e t it io n s f o r c e r t io r a r i a n d p r o h ib it io n a r e is s u e s r e la t in g t o , a n d b o r n e b y , a n a g r e e m e n t f o r g e d in t h e t u r n o f th e la s t c e n tu ry b e tw e e n th e R e p u b lic of th e P h ili p p in e s and th e U n it e d S ta te s of

A m e r ic a - t h e V is it in g F o r c e s A g r e e m e n t .

T h e a n t e c e d e n t s u n f o ld . O n M a rc h 1 4, 1 9 4 7 , th e P h ilip p in e s and th e U n it e d S ta te s of A m e r ic a fo rg e d a

M ilit a r y B a s e s A g r e e m e n t w h ic h f o r m a liz e d , a m o n g o t h e r s , t h e u s e o f in s t a lla t io n s in t h e P h il ip p i n e t e r r it o r y by U n it e d S ta te s m ilit a r y p e r s o n n e l. T o f u rt h e r stre n g th e n t h e ir in t o a to

d e f e n s e a n d s e c u r it y r e l a t io n s h ip , t h e M u tu a l D e fe n s e re s p o n d to any
[1 ]

P h i lip p in e s a n d t h e U n it e d S t a t e s e n t e r e d tre a ty , th e p a r t ie s

T re a ty

on

A u g u s t 3 0 , 1 9 5 1 . U n d e r th e a tta c k o n

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t h e ir t e r r it o r y , a r m e d

f o r c e s , p u b lic v e s s e ls ,

a n d a ir c r a f t .

I n v ie w o f t h e im p e n d in g e x p ir a t io n o f t h e R P - U S M ilit a r y B a s e s A g r e e m e n t in 1 9 9 1 , t h e P h ilip p in e s a n d t h e U n it e d S t a t e s n e g o t ia t e d f o r a p o s s ib le e x t e n s io n o f t h e m ilit a r y b a s e s a g r e e m e n t . O n S e p t e m b e r 1 6 , 1 9 9 1 , t h e P h ilip p in e S e n a t e r e je c t e d t h e p r o p o s e d R P -U S T re a ty th e of F r ie n d s h ip , of U S C o o p e r a t io n and S e c u r it y th e w h ic h ,


[2 ]

in

e ffe c t, th e

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p re s e n c e M il it a r y tw o

m ilit a r y b a s e s in A g re e m e n t, th e

P h ilip p in e s .

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e x p ir a t io n

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a b e y a n c e . N o t w it h s t a n d in g , t h e and th e U n it e d S ta te s

d e fe n s e of

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th e

P h ili p p in e s

A m e r ic a

c o n t in u e d p u r s u a n t t o t h e M u t u a l D e f e n s e T r e a t y . O n J u ly 1 8 , 1 9 9 7 , t h e U n it e d S t a t e s p a n e l, h e a d e d b y U S D e f e n s e D e p u t y A s s is t a n t S e c re ta ry F o r e ig n fo r A s ia P a c if ic K u rt C a m p b e ll, R o d o lf o m et w it h th e J r., P h i lip p in e to p a n e l, heade d on by th e

A f f a ir s

U n d e rs e c re ta ry

S e v e r in o

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n o te s

c o m p le m e n t in g s t r a t e g ic in t e r e s t s o f t h e U n it e d S t a t e s a n d t h e

P h i lip p in e s in t h e A s ia -

P a c if ic r e g io n . B o t h s id e s d is c u s s e d , a m o n g o t h e r t h in g s , t h e p o s s ib le e le m e n t s o f t h e V is it in g le d and th e n to a F o rc e s A g re e m e n t (V F A f o r b r e v it y ) . N e g o t ia t io n s b y in tu rn r e s u lt e d to a b o th p a n e ls o n th e V F A

c o n s o l id a t e d
[3 ]

d r a f t t e x t, w h ic h in

f in a l s e r ie s o f c o n f e r e n c e s and w as 1 3 , 1 9 9 8 . T h e re a fte r, r e s p e c t iv e ly s ig n e d by

n e g o t ia t io n s

t h a t c u lm in a t e d

M a n i la

on

J a n u a ry 1 2

P r e s id e n t F id e l V . R a m o s

a p p ro v e d a nd

th e

V F A , w h ic h

p u b lic r e s p o n d e n t S e c r e t a r y S ia z o n o n F e b ru a ry 1 0 , 1 9 9 8 .

U n it e s S t a t e s A m b a s s a d o r T h o m a s H u b b a r d

O n O c t o b e r 5 , 1 9 9 8 , P r e s id e n t J o s e p h E . E s t r a d a , t h r o u g h r e s p o n d e n t S e c r e t a r y o f F o r e ig n A f f a ir s , r a t if ie d t h e V F A .
[4 ]

O n O c t o b e r 6 , 1 9 9 8 , t h e P r e s id e n t , a c t in g t h r o u g h r e s p o n d e n t E x e c u t iv e S e c r e t a r y R o n a ld o Z a m o r a , o f f ic ia lly t r a n s m it t e d t o t h e S e n a t e o f t h e P h ilip p i n e s , o f R a t if ic a t io n , t h e le t t e r o f t h e P r e s id e n t
[6 ] [5 ]

th e In stru m e n t p u rs u a n t to

and

th e

V F A , fo r c o n c u rre n c e

S e c t io n 2 1 , A r t ic le V I I o f t h e 1 9 8 7 C o n s t it u t io n . T h e S e n a t e , in t u r n , r e f e r r e d t h e V F A t o it s C o m m it t e e o n F o r e ig n R e la t io n s , c h a ir e d b y S e n a t o r B la s F . O p le , a n d it s C o m m itt e e o n N a t io n a l D e f e n s e a n d S e c u r it y , c h a ir e d b y S e n a t o r R o d o lf o G . B ia z o n , f o r t h e ir jo in t c o n s id e r a t io n and
[7 ]

r e c o m m e n d a t io n . T h e r e a f t e r , jo in t p u b lic h e a r in g s w e r e

h e ld

b y th e

t w o C o m m it t e e s . O n 443
[8 ]

M ay

3,

1999,

th e

C o m m it t e e s

s u b m itt e d S e n a te

P ro p o s e d to th e

S e n a te and

R e s o lu t io n th e c r e a t io n

N o. of a

r e c o m m e n d in g

th e

c o n c u rre n c e

o f th e

V FA

L e g is la t iv e O v e r s ig h t C o m m it t e e t o o v e r s e e it s im p le m e n t a t io n . D e b a t e s t h e n e n s u e d .

O n

M ay

27,

1999,

P ro p o s e d
[9 ]

S e n a te

R e s o lu t io n

N o.

443

w as

a p p ro v e d

by

th e

S e n a t e , b y a t w o - t h ir d s ( 2 / 3 ) v o t e

o f it s m e m b e r s . S e n a t e R e s o lu t io n N o . 4 4 3 w a s t h e n
[1 0 ]

r e - n u m b e r e d a s S e n a t e R e s o lu t io n N o . 1 8 .

O n J u n e 1 , 1 9 9 9 , t h e V F A o f f ic ia lly e n t e r e d

in t o f o r c e a f t e r a n E x c h a n g e o f N o t e s

b e t w e e n r e s p o n d e n t S e c r e t a r y S ia z o n a n d U n it e d S t a t e s A m b a s s a d o r H u b b a r d . The V F A , fo r w h ic h c o n s is t s th e of a P r e a m b le and and n in e (9 ) A r t ic le s , under p r o v id e s w h ic h U S fo r th e

m e c h a n is m

r e g u la t in g

c ir c u m s t a n c e s

c o n d it io n s

A rm e d

F o r c e s a n d d e f e n s e p e r s o n n e l m a y b e p r e s e n t in t h e P h ilip p in e s , a n d is q u o t e d in it s f u ll te x t, h e re u n d e r:

A r tic le I D e f in i t i o n s A s u s e d i n th i s A g r e e m e n t , U n i t e d S t a t e s p e r s o n n e l m e a n s U n i t e d S t a t e s m i l i t a r y a n d c iv i l i a n p e r s o n n e l t e m p o r a r i l y in th e P h i l i p p in e s in c o n n e c t i o n w i t h a c t i v i t i e s a p p r o v e d b y t h e P h i l i p p i n e G o v e r n m e n t. W i t h in t h i s d e f in i t i o n :
1 . T h e te rm m ilita r y p e r s o n n e l r e fe r s to m ilita r y m e m b e r s o f t h e U n ite d S ta te s A r m y ,

N a v y , M a r in e C o r p s , A i r F o r c e , a n d C o a s t G u a r d . 2 . T h e te rm o r d in a r y a rm e d c iv i lia n p e r s o n n e l r e fe r s to in d iv id u a ls w h o r e s id e n ts in th e a re P h il ip p in e s and w h o th e a re a r e n e ith e r n a tio n a l s o f, n o r b y th e U n it e d S ta t e s as

e m p lo y e d S t a te s

fo rc e s

or w ho

a c c o m p a n y in g

U n ite d

a rm e d

fo rc e s , s u c h

e m p lo y e e s o f th e A m e r ic a n R e d C r o s s a n d th e U n ite d S e r v ic e s O r g a n i z a tio n .

A r tic le II R e sp e c t f o r L a w I t i s th e d u ty o f t h e U n i t e d S t a t e s p e r s o n n e l t o r e s p e c t th e l a w s o f t h e R e p u b l i c o f t h e P h i l i p p i n e s a n d t o a b s t a i n f r o m a n y a c t i v i ty in c o n s i s t e n t w i t h th e s p i r i t o f th i s a g r e e m e n t , a n d , in p a r t i c u l a r , f r o m a n y p o l i t i c a l a c t i v i t y in t h e P h i l i p p i n e s . T h e G o v e r n m e n t o f t h e U n i t e d S t a t e s s h a l l t a k e a l l m e a s u r e s w i th i n i t s a u t h o r i ty t o e n s u r e t h a t th i s i s d o n e . A r tic le II I E n t r y a n d D e p a r tu r e 1 . T h e G o v e r n m e n t o f t h e P h i l i p p in e s s h a l l f a c i l i t a t e t h e a d m i s s i o n o f U n i t e d S t a t e s p e r s o n n e l a n d th e i r d e p a r t u r e f r o m t h e P h i l i p p i n e s i n c o n n e c t i o n w i t h a c t i v i t i e s c o v e r e d b y th i s a g r e e m e n t .

2 . U n ite d S ta te s m ilita r y p e r so n n e l s h a ll b e e x e m p t fr o m p a ss p o r t a n d v is a r e g u l a t i o n s u p o n e n t e r i n g a n d d e p a r t in g t h e P h i l i p p i n e s . 3 . T h e f o l l o w in g d o c u m e n t s o n ly , w h i c h s h a l l b e p r e s e n t e d o n d e m a n d , s h a l l b e r e q u i r e d in r e s p e c t o f U n i t e d S t a t e s m i l i t a r y p e r s o n n e l w h o e n t e r t h e P h i l i p p in e s : ( a ) p e r s o n a l i d e n t i t y c a r d i s s u e d b y t h e a p p r o p r i a t e U n i t e d S t a t e s a u th o r i t y s h o w i n g f u l l n a m e , d a t e o f b i r t h , r a n k o r g r a d e a n d s e r v i c e n u m b e r ( if a n y ) , b r a n c h o f s e r v i c e a n d p h o to g r a p h ; ( b ) in d iv i d u a l o r c o l l e c t i v e d o c u m e n t i s s u e d b y t h e a p p r o p r i a t e U n i t e d S t a t e s a u t h o r i t y , a u th o r i z i n g t h e tr a v e l o r v i s i t a n d i d e n t i f y i n g th e in d i v id u a l o r g ro u p a s U n ite d S ta te s m ilita r y p e r so n n e l; a n d ( c ) th e c o m m a n d i n g o f f i c e r o f a m i l i t a r y a i r c r a f t o r v e s s e l s h a l l p r e s e n t a d e c l a r a t i o n o f h e a l t h , a n d w h e n r e q u i r e d b y t h e c o g n i z a n t r e p r e s e n t a t iv e o f t h e G o v e r n m e n t o f t h e P h i l i p p in e s , s h a l l c o n d u c t a q u a r a n t i n e i n s p e c t io n a n d w i l l c e r t i f y t h a t t h e a i r c r a f t o r v e s s e l i s f r e e f r o m q u a r a n t in a b l e d i s e a s e s . A n y q u a r a n t i n e in s p e c t i o n o f U n i t e d S t a t e s a i r c r a f t o r U n i t e d S t a t e s v e s s e l s o r c a r g o e s t h e r e o n s h a l l b e c o n d u c t e d b y th e U n i t e d S t a t e s c o m m a n d in g o f f i c e r in a c c o r d a n c e w i th t h e i n t e r n a t io n a l h e a l th r e g u l a t i o n s a s p r o m u lg a t e d b y t h e W o r l d H e a l th O r g a n i z a t i o n , a n d m u tu a l l y a g r e e d p r o c e d u r e s . 4 . U n i t e d S t a t e s c iv i l i a n p e r s o n n e l s h a l l b e e x e m p t f r o m v i s a r e q u ir e m e n t s b u t s h a l l p r e s e n t , u p o n d e m a n d , v a l id p a s s p o r t s u p o n e n t r y a n d d e p a r tu r e o f th e P h i l i p p in e s . 5 . I f t h e G o v e r n m e n t o f th e P h i l i p p in e s h a s r e q u e s t e d th e r e m o v a l o f a n y U n i t e d S t a t e s p e r s o n n e l f r o m i t s t e r r i t o r y , th e U n i t e d S t a t e s a u t h o r i t i e s s h a l l b e r e s p o n s ib l e f o r r e c e i v in g t h e p e r s o n c o n c e r n e d w i t h in i t s o w n t e r r i t o r y o r o t h e r w i s e d i s p o s in g o f s a i d p e r s o n o u t s i d e o f th e P h i l i p p in e s . A r tic le IV D r iv i n g a n d V e h i c l e R e g i s t r a t i o n 1 . P h i l i p p i n e a u th o r i t i e s s h a l l a c c e p t a s v a l i d , w i t h o u t t e s t o r f e e , a d r i v in g p e r m i t o r l i c e n s e i s s u e d b y t h e a p p r o p r i a t e U n i t e d S t a t e s a u th o r i t y to U n i t e d S t a t e s p e r s o n n e l f o r th e o p e r a t i o n o f m i l i t a r y o r o f f i c i a l v e h i c l e s .

2 . V e h i c l e s o w n e d b y t h e G o v e r n m e n t o f th e U n i t e d S t a t e s n e e d n o t b e r e g i s t e r e d , b u t s h a l l h a v e a p p r o p r i a t e m a r k in g s . A r tic le V C r im in a l J u r isd ic tio n 1 . S u b j e c t t o th e p r o v i s io n s o f t h i s a r t i c l e :


( a ) P h ilip p in e re s p e c t to a u th o r itie s o ffe n s e s s h a ll h a v e j u r is d ic tio n th e o v e r U n it e d and S ta te s p e r s o n n e l w ith u n d e r th e

c o m m i tte d

w it h in

P h ilip p i n e s

p u n is h a b le

la w o f th e P h ilip p in e s . (b ) U n ite d S ta te s a ll m ilita r y c r i m in a l a u th o r itie s an d s h a ll ha ve th e r ig h t to e x e rc i s e o n w ith i n by th e th e

P h ilip p in e s

d is c i p lin a r y

j u r is d ic ti o n

c o n fe rre d

th e m

m ilita r y la w o f th e U n ite d S ta t e s o v e r U n ite d S ta te s p e r s o n n e l in th e P h ilip p in e s . 2 . ( a ) P h ilip p in e a u th o r itie s e x e r c is e e x c lu s iv e ju r i s d ic tio n over U n ite d S ta t e s

p e r s o n n e l w it h r e s p e c t to o ffe n s e s , in c lu d i n g o ffe n s e s r e la tin g to th e s e c u r ity of th e P h ilip p in e s , p u n is h a b le und er th e la w s of th e P h ili p p in e s , b ut not

u n d e r th e la w s o f th e U n ite d S ta te s . ( b ) U n ite d S ta t e s a u t h o r itie s e x e r c is e e x c lu s iv e ju r is d ic tio n over U n ite d S ta t e s

p e r s o n n e l w it h r e s p e c t to o ffe n s e s , in c lu d i n g o ffe n s e s r e la tin g to th e s e c u r ity o f th e U n ite d S ta t e s , p u n is h a b le u n d e r th e la w s o f th e U n it e d S ta te s , b u t n o t u n d e r th e la w s o f th e P h ilip p i n e s . ( c ) F o r t h e p u r p o s e s o f t h is p a r a g r a p h a n d p a r a g r a p h 3 o f th is a r tic l e , a n o ffe n s e r e la tin g to s e c u r i ty m e a n s :

( 1 ) tr e a s o n ;

( 2 ) s a b o t a g e , e s p io n a g e o r v io l a t i o n o f a n y l a w r e l a t i n g t o n a t i o n a l d e fen se.
3 . In case s w h e re th e r ig h t to e x e r c is e ju r i s d ic tio n is c o n c u rre n t, t h e fo llo w in g ru le s

s h a ll a p p l y : ( a ) P h ilip p in e a u th o r i tie s s h a ll h a v e th e p r im a r y r i g h t to e x e r c is e ju r is d ic ti o n o v e r a ll o ffe n s e s c o m m itte d b y U n it e d S ta te s p e r s o n n e l, e x c e p t in c a s e s p r o v id e d fo r in p a r a g r a p h s 1 ( b ) , 2 ( b ) , a n d 3 ( b ) o f t h is A r ti c le . (b ) U n ite d S ta te s m ilita r y a u th o r i tie s s h a ll have th e p rim a ry r ig h t to e x e r c is e

ju r is d ic tio n o v e r U n it e d S t a te s p e r s o n n e l s u b je c t to th e m ilit a r y la w S ta te s in r e la tio n to . (1 ) o ffe n s e s s o le ly a g a in s t th e p ro p e rty or s e c u r ity of th e

o f th e U n ite d

U n ite d

S ta te s

or

o ffe n s e s s o le ly a g a in s t th e p r o p e r ty o r p e r s o n o f U n ite d S ta te s p e r s o n n e l; a n d (2 ) o ffe n s e s d u ty . a r is in g out of a ny ac t or o m is s i o n d one in p e r fo rm a n c e o f o ffic i a l

(c ) T h e

a u t h o r itie s

o f e ith e r w a iv e

g o v e rn m e n t m a y p rim a ry r ig h t to

r e q u e s t th e e x e r c is e

a u th o r itie s in

o f th e a

o th e r

g o v e rn m e n t to case.

th e ir

ju r is d i c tio n

p a r t ic u la r

( d ) R e c o g n iz in g th e r e s p o n s ib ility o f th e U n i te d S t a te s m ilita r y a u th o r itie s to m a i n ta i n good o rd e r and th e d is c ip lin e U n ite d am ong t h e ir fo r c e s , P h i lip p in e p r im a r y r ig h t to a u th o r i tie s e x e r c is e w ill , u p o n ju r is d ic tio n

re q u e s t b y

S ta t e s , w a iv e

th e ir

e x c e p t in c a s e s o f p a r tic u l a r im p o r ta n c e to th e P h il ip p in e s . If th e G o v e r n m e n t o f th e P h i lip p in e s d e te r m in e s th a t th e to c ase th e is of p a r ti c u la r S ta t e s im p o r ta n c e , w ith in it s h a ll

c o m m u n i c a te

su ch

d e te r m in a ti o n

U n it e d

a u th o r itie s

t w e n ty

( 2 0 ) d a y s a fte r t h e P h ili p p in e a u th o r i tie s r e c e iv e th e U n it e d S ta t e s r e q u e s t. ( e ) W h e n th e U n ite d S ta te s m ilit a r y c o m m a n d e r d e te r m in e s th a t a n o ffe n s e c h a r g e d b y a u th o r itie s o f t h e P h ilip p in e s a g a in s t U n ite d s ta te s p e r s o n n e l a r i s e s o u t o f a n a c t o r o m is s io n d o n e in th e p e r fo r m a n c e o f o f fic ia l d u ty , t h e c o m m a n d e r w ill is s u e a c e r tific a te s e tt in g fo r th s u c h d e te r m i n a tio n . T h is c e r tific a te w ill b e tr a n s m itte d to th e a p p r o p r ia te a u th o r itie s o f th e P h ilip p in e s a n d w ill c o n s ti tu te s u f fic ie n t p r o o f o f p e r fo r m a n c e o f o ffic ia l d u ty fo r th e p u r p o s e s o f p a r a g r a p h 3 ( b ) ( 2 ) o f th i s A r tic le . In th o s e ca ses w h e re th e G o v e rn m e n t of th e P h il ip p in e s b e l ie v e s th e

c ir c u m s ta n c e s o f th e c a s e r e q u ir e a r e v ie w

o f th e d u t y c e r tific a te , U n ite d S ta te s

m ilita r y a u th o r itie s a n d P h ilip p i n e a u th o r itie s s h a ll c o n s u lt i m m e d ia te ly . P h ili p p in e a u th o r itie s a t th e h ig h e s t le v e ls m a y a l s o p r e s e n t a n y in f o r m a tio n b e a r in g o n its v a lid ity . U n ite d S ta te s m ilit a r y a u th o r i tie s s h a ll ta k e fu ll a c c o u n t o f th e P h ili p p in e p o s itio n . W h e re a p p r o p r ia te , U n ite d S ta t e s m ilita r y a u th o r iti e s w ill ta k e

d is c ip lin a r y o r o th e r a c tio n a g a in s t o ffe n d e r s i n o ffic i a l d u t y c a s e s , a n d n o tif y th e G o v e r n m e n t o f t h e P h il ip p in e s o f th e a c tio n s ta k e n . ( f) If th e g o v e r n m e n t h a v in g th e p r im a r y r ig h t d o e s n o t e x e r c is e ju r is d ic ti o n , it s h a ll n o tify th e a u th o r i tie s o f th e o t h e r g o v e r n m e n t a s s o o n a s p o s s ib le . ( g ) T h e a u th o r iti e s o f th e P h ilip p in e s a n d th e U n ite d S ta te s s h a ll n o ti fy e a c h o th e r o f th e d is p o s itio n o f a ll c a s e s in w h ic h b o th th e a u th o r it ie s o f th e P h ili p p in e s a n d th e U n ite d S t a te s h a v e th e r ig h t t o e x e r c is e ju r i s d ic tio n . 4 . W ith in th e s c o p e o f th e ir le g a l c o m p e t e n c e , th e a u th o r it ie s o f th e P h ilip p in e s a n d

U n ite d S t a te s s h a ll a s s is t e a c h o th e r in th e a r r e s t o f U n ite d S t a te s p e r s o n n e l in t h e P h ilip p in e s a n d in h a n d lin g th e m o v e r to a u t h o r itie s w h o a r e to e x e r c is e ju r is d ic ti o n

in a c c o r d a n c e w i th th e p r o v is i o n s o f th is a r ti c le . 5 . U n it e d S ta te s m ilit a r y a u th o r iti e s s h a ll p r o m p tly n o tify P h ilip p in e a u th o r i tie s o f th e

a r r e s t o r d e t e n tio n o f U n ite d S t a te s p e r s o n n e l w h o a r e s u b je c t o f P h ilip p i n e p r im a r y or e x c lu s iv e ju r is d ic t io n . P h il ip p in e a u th o r iti e s s h a ll p r o m p tly n o tify U n i te d S ta t e s

m ilita r y a u th o r iti e s o f th e a r r e s t o r d e te n tio n o f a n y U n ite d S ta te s p e r s o n n e l. 6 . The c u s to d y of any U n ite d S ta t e s p e rs o n n e l ove r w h om th e P h il ip p in e s is to

e x e r c is e ju r is d ic tio n s h a ll im m e d ia te ly r e s id e w ith U n ite d S t a te s m ilita r y a u th o r itie s , if th e y s o r e q u e s t, fr o m th e c o m m is s i o n o f th e o f fe n s e u n til c o m p le tio n o f a ll ju d ic i a l

p r o c e e d in g s . U n ite d S ta t e s m ilita r y a u th o r itie s s h a ll, u p o n fo r m a l n o tific a tio n b y t h e P h ilip p in e a u th o r itie s and w ith o u t d e l a y , m a k e suc h p e r s o n n e l a v a ila b le to th o s e

a u th o r itie s in tim e fo r a n y in v e s t ig a tiv e o r ju d ic i a l p r o c e e d i n g s r e la tin g to th e o ffe n s e w ith w h ic h th e p e rs o n has b een charged to th e in e x tr a o r d in a r y U n i te d S ta t e s cases, th e P h ilip p i n e

G o v e r n m e n t s h a ll p r e s e n t it s c u s to d y , w h ic h th e U n ite d

p o s itio n

G o v e rn m e n t r e g a rd in g in to fu ll a c c o u n t. In th e

S ta te s

G o v e r n m e n t s h a ll ta k e

e v e n t P h ilip p i n e ju d ic ia l p r o c e e d in g s a r e n o t c o m p l e te d w ith in o n e y e a r , th e U n it e d

S ta te s

s h a ll

be

r e lie v e d

of

an y

o b lig a tio n s

un der

th is

p a ra g r a p h .

The

o n e -y e a r w ill

p e r io d w ill n o t in c lu d e th e t im e n e c e s s a r y to a p p e a l. A l s o , th e o n e - y e a r p e r io d

n o t in c lu d e a n y ti m e d u r in g w h ic h s c h e d u le d tr ia l p r o c e d u r e s a r e d e la y e d b e c a u s e U n ite d S ta te s a u t h o r itie s , a fte r tim e ly n o tifi c a tio n b y P h ili p p in e a u th o r itie s to a r r a n g e fo r th e p r e s e n c e o f th e a c c u s e d , fa il to d o s o . 7 . W ith in th e scope o f t h e ir l e g a l a u th o r it y , U n i te d S ta te s and P h ilip p i n e a u th o r iti e s

s h a ll a s s is t e a c h o th e r i n th e c a r r y in g o u t o f a ll n e c e s s a r y i n v e s tig a tio n in to o ffe n s e s and s h a ll c o o p e ra te an d in p r o v id in g fo r th e a tt e n d a n c e s e iz u r e of w itn e s s e s and in th e

c o lle c tio n

p r o d u c t io n

o f e v id e n c e , in c lu d in g

a n d , in

p ro p e r c a s e s , th e

d e liv e r y o f o b je c ts c o n n e c te d w ith a n o ffe n s e . 8 . W h e n U n i te d S ta te s p e r s o n n e l h a v e b e e n tr ie d in a c c o r d a n c e w ith th e p r o v is i o n s o f th is A r tic l e and have been a c q u itte d or hav e bee n c o n v ic te d and a re s e r v in g , o r

h a v e s e r v e d th e ir s e n te n c e , o r h a v e h a d t h e ir s e n te n c e r e m itte d have been p a rd o n e d , th e y m ay not be tr ie d a g a in fo r th e

or susp ended, or o ffe n s e in th e

sam e

P h ilip p in e s . N o th i n g in th is p a r a g r a p h , h o w e v e r , s h a ll p r e v e n t U n i te d S ta t e s m ilita r y a u th o r itie s fr o m a r is in g f r o m tr y in g U n ite d S ta t e s p e r s o n n e l fo r a n y v io la tio n o f r u le s o f d is c ip li n e w h ic h c o n s titu te d an o ffe n s e fo r w h ic h th e y w e r e

t h e a c t o r o m is s io n

tr ie d b y P h ilip p in e a u th o r itie s . 9 . W h e n U n ite d S ta te s p e r s o n n e l a r e d e ta in e d , ta k e n in to c u s to d y , o r p r o s e c u te d by

P h ilip p in e a u t h o r itie s , th e y s h a ll b e a c c o r d e d a ll p r o c e d u r a l s a f e g u a r d s e s t a b lis h e d by th e la w o f th e P h ilip p in e s . A t th e m in im u m , U n ite d S ta te s p e r s o n n e l s h a ll b e

e n title d : ( a ) T o a p r o m p t a n d s p e e d y tr i a l; ( b ) T o b e in fo r m e d in a d v a n c e o f tr ia l o f t h e s p e c ific c h a r g e o r c h a r g e s m a d e a g a in s t th e m a n d to h a v e r e a s o n a b le tim e to p r e p a r e a d e fe n s e ; (c ) T o be c o n fro n te d w ith w it n e s s e s a g a in s t th e m an d to c ro s s e x a m in e such

w itn e s s e s ; (d ) T o p re s e n t e v id e n c e in th e i r d e fe n s e an d to ha ve c o m p u ls o r y p ro c e s s fo r

o b ta in in g w itn e s s e s ; ( e ) T o h a v e f r e e a n d a s s is te d le g a l r e p r e s e n ta tio n o f t h e ir o w n c h o ic e o n th e s a m e b a s is a s n a tio n a ls o f th e P h ili p p in e s ; ( f) T o h a v e th e s e r v ic e o f a c o m p e te n t in te r p r e te r ; a n d (g ) T o c o m m u n i c a te p r o m p tly w ith and to be v is ite d r e g u la r ly by U n ite d S ta te s

a u th o r itie s , a n d to h a v e s u c h a u th o r i tie s p r e s e n t a t a ll ju d ic ia l p r o c e e d in g s . T h e s e p r o c e e d in g s s h a ll b e p u b lic u n le s s th e c o u r t, in a c c o r d a n c e w it h P h ili p p in e e x c lu d e s p e r s o n s w h o h a v e n o r o le i n th e p r o c e e d in g s . 1 0 . T h e c o n fi n e m e n t o r d e te n t io n b y P h ilip p in e a u t h o r itie s o f U n ite d S ta t e s p e r s o n n e l s h a ll b e S ta te s c a rrie d o u t in fa c iliti e s S ta te s a g re e d on b y a p p r o p r ia t e P h ilip p in e in th e and U n it e d la w s ,

a u th o r iti e s . U n ite d

P e rs o n n e l

s e r v in g

s e n te n c e s

P h ilip p in e s

s h a ll h a v e th e r i g h t to v is its a n d m a t e r ia l a s s is ta n c e . 1 1 . U n ite d S ta te s p e rs o n n e l s h a ll be s u b je c t to tr ia l o n ly in P h ilip p in e c o u rts of

o r d in a r y j u r is d ic t io n , a n d s h a l l n o t b e s u b j e c t to t h e ju r i s d ic tio n o f P h ilip p in e m ilita r y o r r e lig io u s c o u r t s .

A r tic le V I C la im s
1 . E x c e p t fo r c o n tr a c tu a l a r r a n g e m e n ts , in c lu d in g U n ite d S ta t e s fo r e ig n m ilita r y s a l e s le tte r s o f o ffe r a n d a c c e p t a n c e a n d le a s e s o f m ilit a r y e q u ip m e n t, b o t h g o v e r n m e n ts w a iv e an y and a ll c la im s o th e r s a g a in s t arm ed each o th e r or fo r fo r d a m a g e , lo s s or in ju r y to or d e s tr u c tio n m ilita r y to

p ro p e rty

of eac h

fo rc e s

d e a th

th e ir

a nd

c iv ilia n p e r s o n n e l a r is in g fr o m 2 . F o r c la im s w h ic h U n ite d a g a in s t th e 1

a c tiv iti e s to w h ic h th is a g r e e m e n t a p p lie s . S ta t e s , o th e r t h a n U n ite d fo r e ig n S ta te s c la i m s , c o n tr a c tu a l c la im s in a nd th o s e to

U n it e d

p a ra g ra p h S ta te s

a p p lie s ,

th e

G o ve rn m e n t, w ill pay

a c c o rd a n c e and

w i th

la w

r e g a r d in g

ju s t

r e a s o n a b le

c o m p e n s a tio n in s e ttle m e n t o f m e r it o r io u s c l a im s fo r d a m a g e , l o s s , p e r s o n a l in ju r y or d e a th , c a u s e d by a c ts or o m is s io n s o f U n ite d S ta te s p e r s o n n e l, o r o th e rw i s e

in c id e n t t o th e n o n - c o m b a t a c tiv itie s o f th e U n ite d S ta te s fo r c e s .

A r tic le V II I m p o r ta tio n a n d E x p o r ta tio n


1 . U n ite d im p o r te d S ta te s in to G o v e rn m e n t in e q u ip m e n t, th e m a te r i a ls , by s u p p lie s , a nd o th e r p ro p e r ty S ta t e s

o r a c q u ir e d

P h i lip p in e s

or o n

b e h a lf o f th e

U n ite d

a r m e d f o r c e s in c o n n e c t io n w ith a c tiv itie s to w h ic h th is a g r e e m e n t a p p li e s , s h a ll b e fr e e o f a ll P h il ip p in e s h a ll r e m a in P h ilip p in e s The w ith d u tie s , t a x e s a n d o th e r s i m ila r c h a r g e s . T i tle to s u c h p r o p e r ty U n it e d S ta te s , fro m th is w h ic h m ay re m o v e suc h p ro p e rty fro m th e

th e

at any

tim e , fr e e in

e x p o r t d u tie s , ta x e s , a n d p a ra g ra p h s h a ll a l s o

o th e r s im il a r c h a r g e s . to any d u t y , ta x , o r

e x e m p tio n s

p r o v id e d

e xte n d

o th e r s i m ila r c h a r g e s w h i c h w o u ld o th e r w is e b e im p o r ta tio n re m o v e d in to , th e or a c q u is itio n w ith in , th e

a s s e s s e d u p o n s u c h p ro p e r ty a ft e r S uch p ro p e rty m ay be of

P h ili p p in e s .

fr o m

P h ilip p i n e s , o r

d is p o s e d

o f th e r e in , p r o v id e d

t h a t d is p o s itio n

s u c h p r o p e r t y in th e P h ilip p i n e s to p e r s o n s o r e n titie s n o t e n title d to e x e m p tio n fr o m a p p lic a b l e ta x e s a n d d u tie s s h a ll b e s u b je c t to p a y m e n t o f s u c h ta x e s , a n d d u ti e s

a n d p r io r a p p r o v a l o f th e P h ili p p in e G o v e r n m e n t. 2 . R e a s o n a b le q u a n titie s o f p e r s o n a l b a g g a g e , p e r s o n a l e ffe c ts , a n d o th e r p r o p e r ty f o r th e p e r s o n a l u s e o f U n it e d S ta te s p e r s o n n e l m a y b e im p o r te d in to a n d u s e d in th e P h ilip p in e s th e ir fre e o f a ll d u tie s , ta x e s s ta y in th e and o th e r s im i la r c h a r g e s T ra n s fe rs to d u r in g or th e p e rio d in of th e

te m p o ra ry

P h ilip p in e s .

p e rs o n s

e n tit ie s

P h ilip p in e s n o t e n t it le d t o im p o r t p r i v ile g e s m a y o n ly b e m a d e u p o n p r io r a p p r o v a l o f th e a p p r o p r ia t e P h i lip p in e a u th o r itie s in c lu d in g paym ent b y th e r e c i p ie n t of

a p p lic a b l e d u tie s a n d ta x e s i m p o s e d in a c c o r d a n c e w i th th e la w s o f th e P h i lip p in e s . The e x p o r ta tio n of suc h p ro p e rty an d o f p ro p e rty a c q u ir e d in th e P h ilip p in e s by

U n ite d S t a te s p e r s o n n e l s h a ll b e fr e e o f a ll P h ilip p in e d u ti e s , ta x e s , a n d o th e r s im il a r c h a rg e s .

A r tic le V II I M o v e m e n t o f V e s s e ls a n d A ir c r a f t
1 . A ir c r a f t o p e r a te d b y o r f o r t h e U n ite d S ta te s a r m e d fo r c e s m a y e n t e r th e P h ilip p in e s u p o n a p p r o v a l o f th e G o v e r n m e n t o f t h e P h i lip p in e s in a c c o r d a n c e w ith p r o c e d u r e s s tip u la te d in im p l e m e n t in g a r r a n g e m e n ts .

2 .

V e s s e ls

o p e ra te d

by

or

fo r

th e

U n it e d

S t a te s

arm ed

fo rc e s

m ay

e n te r

th e

P h ilip p in e s u p o n a p p r o v a l o f th e G o v e r n m e n t o f th e P h i lip p in e s . T h e m o v e m e n t o f v e s s e ls s h a ll b e in a c c o rd a n c e w ith in t e r n a tio n a l c u s t o m and p r a c tic e g o v e rn in g

s u c h v e s s e ls , a n d s u c h a g r e e d im p l e m e n ti n g a r r a n g e m e n ts a s n e c e s s a r y . 3 . V e h ic le s , v e s s e ls , a n d a ir c r a f t o p e r a te d by o r fo r th e U n ite d S ta te s a rm e d fo rc e s

s h a ll n o t b e s u b je c t to th e p a y m e n t o f la n d in g o r p o r t fe e s , n a v ig a tio n o r o v e r flig h t c h a r g e s , o r to lls o r o th e r u s e c h a r g e s , in c lu d i n g li g h t a n d h a r b o r d u e s , w h ile in t h e P h ilip p in e s . A ir c r a ft o p e r a te d b y o r fo r th e U n i te d S ta te s a r m e d fo r c e s s h a ll o b s e r v e lo c a l a ir tr a ffic c o n tro l r e g u la tio n s w h ile in th e P h ilip p in e s . V e s s e ls ow ned or

o p e r a te d b y th e U n ite d S ta te s s o le ly o n U n ite d S ta te s G o v e r n m e n t n o n - c o m m e r c i a l s e r v ic e s h a ll n o t b e s u b je c t to c o m p u ls o r y p ilo ta g e a t P h i li p p in e p o r ts .

A r tic le IX D u r a tio n a n d T e rm in a tio n T h i s a g r e e m e n t s h a l l e n t e r in t o f o r c e o n t h e d a t e o n w h i c h th e p a r t i e s h a v e n o t i f i e d e a c h o th e r i n w r i t i n g th r o u g h th e d ip l o m a t i c c h a n n e l th a t t h e y h a v e c o m p l e t e d t h e i r c o n s t i t u t i o n a l r e q u i r e m e n t s f o r e n t r y in t o f o r c e . T h i s a g r e e m e n t s h a l l r e m a i n i n f o r c e u n t i l th e e x p ir a t i o n o f 1 8 0 d a y s f r o m th e d a t e o n w h i c h e i t h e r p a r ty g iv e s th e o t h e r p a r t y n o t i c e i n w r i t i n g th a t i t d e s i r e s t o t e r m in a t e t h e a g r e e m e n t.


[1 1 ]

V ia t h e s e le g is la t o r s ,

c o n s o l id a t e d

p e t it io n s

fo r

c e r t io r a r i

and

p r o h ib it io n , and

p e t it i o n e r s a s s a il

as th e

n o n -g o v e rn m e n ta l

o r g a n iz a t io n s ,

c it iz e n s

ta x p a y e rs

c o n s t it u t io n a lit y o f t h e V F A a n d im p u t e t o h e r e in r e s p o n d e n t s g r a v e a b u s e o f d is c r e t io n in r a t if y in g t h e a g r e e m e n t. W e h a v e s im p lif ie d t h e is s u e s r a is e d b y t h e p e t it io n e r s in t o t h e f o llo w i n g :


I

D o p e t i t i o n e r s h a v e l e g a l s t a n d in g a s c o n c e r n e d c i t i z e n s , t a x p a y e r s , o r l e g i s l a to r s t o q u e s t i o n th e c o n s t i t u t i o n a l i t y o f t h e V F A ?
II

I s th e V F A g o v e r n e d b y th e p r o v i s i o n s o f S e c t i o n 2 1 , A r t i c l e V I I o r o f S e c t io n 2 5 , A r t i c l e X V I I I o f th e C o n s t i t u t i o n ?
III

D o e s th e V F A c o n s t i t u t e a n a b d i c a t i o n o f P h i l i p p i n e s o v e r e ig n ty ?
a . A r e P h ilip p i n e c o u r ts d e p r iv e d o f th e i r ju r i s d ic tio n to h e a r a n d tr y o ffe n s e s c o m m itt e d b y U S m ili ta r y p e r s o n n e l?

b . Is

th e

S u p re m e

C o u rt

d e p riv e d

of

its

ju r is d ic tio n

over

o ffe n s e s

p u n is h a b le

by

r e c lu s io n p e r p e t u a o r h ig h e r ?
IV

D o e s th e V F A v io l a t e :
a . th e e q u a l p r o t e c tio n c la u s e u n d e r S e c tio n 1 , A r t ic le III o f th e C o n s tit u tio n ? b . th e P r o h ib itio n a g a in s t n u c l e a r w e a p o n s u n d e r A r tic le II, S e c t io n 8 ? c . S e c tio n 2 8 ( 4 ) , A r tic le V I o f th e C o n s titu tio n g r a n tin g th e e x e m p ti o n fr o m d u tie s fo r th e e q u ip m e n t , m a te r ia l s s u p p lie s and o th e r p r o p e r tie s ta x e s a n d in to or

i m p o rte d

a c q u ir e d i n th e P h ilip p i n e s b y , o r o n b e h a lf, o f th e U S A r m e d F o r c e s ?

LO C U S S TA N D I

A t t h e o u t s e t, r e s p o n d e n t s c h a lle n g e p e t it io n e r s s t a n d in g t o s u e , o n t h e g r o u n d t h a t th e la t t e r have not show n have


[1 2 ]

any

in t e r e s t or

in

th e

case,

and d ir e c t

th at

p e t it io n e r s as th a t w h ic h a

f a ile d

to

s u b s t a n t ia t e o p e r a t io n in v a l id it y s t a n d in g . of of
[1 3 ]

th a t th e y th e th e V FA . V F A

s u s t a in e d , on

w ill s u s t a in o th e r

in ju r y

r e s u lt

o f th e or

P e t it io n e r s , a m a tte r of

th e

hand,

c o u n te r

th e

v a lid it y

is

tra n s c e n d e n ta l

im p o r t a n c e

j u s t if ie s

t h e ir

A p a r t y b r in g in g a s u it c h a ll e n g in g t h e c o n s t it u t io n a lit y o f a l a w , a c t , o r s t a t u t e m u s t show n o t o n ly or th a t th e la w is in v a lid , of b ut a ls o th a t he has s u s t a in e d as a or in is of in it s

im m e d ia t e ,

im m in e n t

danger

s u s t a in in g

som e

d ir e c t som e

in ju r y

r e s u lt

e n fo rc e m e n t, a n d show

n o t m e r e ly t h a t h e

s u ff e r s t h e r e b y in

in d e f in it e

w a y . H e

m ust is by

t h a t h e h a s b e e n , o r is a b o u t t o b e , d e n ie d s o m e r ig h t o r p r iv il e g e t o w h ic h h e is a b o u t to
[1 4 ]

la w f u l ly e n t it le d , o r t h a t h e

be

s u b je c t e d

to

som e

b u r d e n s o r p e n a lt ie s

r e a s o n o f t h e s t a t u t e c o m p la in e d o f .

I n t h e c a s e b e f o r e u s , p e t it io n e r s f a ile d t o s h o w , t o t h e s a t is f a c t io n o f t h is C o u r t , t h a t th e y h a v e s u s t a in e d , o r a r e V FA . A s in d a n g e r o f s u s t a in in g a n y d ir e c t in ju r y a s a have n o t e s t a b lis h e d p o w e rs . th e


[1 5 ]

r e s u lt o f t h e th a t th e V FA

e n fo rc e m e n t of th e in v o lv e s t h e b e a rs

t a x p a y e r s , p e t it io n e r s

e x e r c is e

b y C o n g r e s s o f it s t a x in g t a x p a y e r s s u it refe rs to

o r s p e n d in g a case

O n t h is p o in t , it c o m p la in e d
[1 6 ]

s t r e s s in g

th a t a

w h e re

act

of

d ir e c t ly in v o lv e s t h e

ill e g a l d is b u r s e m e n t o f p u b lic f u n d s d e r iv e d f r o m
[1 7 ]

t a x a t io n .

Thus,

in B u g n a y C o n s t . & D e v e l o p m e n t C o r p . v s . L a r o n

, w e h e ld :

x x x i t i s e x ig e n t t h a t th e t a x p a y e r - p l a in t i f f s u f f i c i e n t l y s h o w th a t h e w o u ld b e b e n e f i t e d o r in j u r e d b y t h e j u d g m e n t o r e n t i t l e d t o t h e a v a i l s o f th e s u i t a s a r e a l p a r t y i n i n t e r e s t . B e f o r e h e c a n i n v o k e th e p o w e r o f j u d i c i a l r e v i e w , h e m u s t s p e c i f i c a l l y p r o v e th a t h e h a s s u f f i c i e n t i n t e r e s t i n p r e v e n t i n g th e i l l e g a l e x p e n d i t u r e o f m o n e y r a i s e d b y t a x a t i o n a n d th a t h e w i l l s u s t a i n a d i r e c t in j u r y a s a r e s u l t o f t h e e n f o r c e m e n t o f t h e q u e s t io n e d s t a t u t e o r c o n tr a c t . I t i s n o t s u f f i c i e n t th a t h e h a s m e r e ly a g e n e r a l i n t e r e s t c o m m o n t o a l l m e m b e r s o f th e p u b l i c .

C le a r ly , in a s m u c h

as n o

p u b l ic f u n d s r a is e d

b y t a x a t io n

a re

i n v o lv e d

in

t h is c a s e ,

a n d in t h e a b s e n c e o f a n y a l le g a t io n b y p e t it io n e r s t h a t p u b lic f u n d s a r e b e in g m is s p e n t o r il le g a l ly e x p e n d e d , p e t it io n e r s , a s ta x p a y e rs , h a v e no le g a l s t a n d in g to a s s a il t h e

le g a l it y o f t h e V F A . S im ila r ly , R e p r e s e n t a t iv e s W ig b e r t o T a a d a , A g a p it o A q u in o a n d J o k e r A rro y o , a s

p e t it io n e r s - le g is l a t o r s , d o n o t p o s s e s s t h e r e q u is it e lo c u s s t a n d i t o m a in t a in t h e p r e s e n t s u it . W h ile E n riq u e z ,
[1 8 ]

t h is

C o u rt,

in P h i l .

C o n s t it u t i o n

A s s o c ia tio n

vs.

H on.

S a lv a d o r

s u s t a in e d t h e le g a l s t a n d i n g o f a m e m b e r o f t h e S e n a t e a n d t h e H o u s e o f

R e p r e s e n t a t iv e s t o q u e s t io n t h e v a lid it y o f a p r e s id e n t ia l v e t o o r a c o n d it i o n im p o s e d o n a n it e m s t a n d in g in a n a p p r o p r ia t io n b u l l, w e c a n n o t , a t t h is in s t a n c e , s im ila r ly u p h o ld p e t it io n e r s as m e m b e rs o f C o n g r e s s , in th e absence of a c le a r s h o w in g of any d ir e c t

in ju r y t o t h e ir p e r s o n o r t o t h e in s t it u t io n t o w h ic h t h e y b e lo n g . B eyond d e le g a t io n r e a l. W h ile t h is , th e a l le g a t io n s of im p a ir m e n t of le g is la t iv e p o w e r, such as th e

o f th e p o w e r o f C o n g r e s s to it m ay be tru e th a t

g r a n t t a x e x e m p t io n s , a r e m o r e a p p a r e n t t h a n p o in t e d to p r o v is io n s of th e V FA w h ic h

p e t it io n e r s

a lle g e d ly im p a ir t h e ir le g is la t iv e

p o w e r s , p e t it io n e r s f a ile d

h o w e v e r to

s u f f ic ie n t ly s h o w

t h a t t h e y h a v e in f a c t s u ff e r e d d ir e c t in ju r y . In th e in sam e th e s e v e in , p e t it io n e r I n t e g r a t e d c a s e s . A s a p t ly o b s e r v e d b r in g t h is s u it in th e B a r o f th e b y th e of a P h ili p p in e s ( I B P ) is s t r ip p e d of

s t a n d in g

S o lic it o r G e n e r a l, t h e b o a rd r e s o lu t i o n fro m

IB P

la c k s t h e of

le g a l c a p a c it y t o

absence

it s B o a r d
[1 9 ]

G o v e r n o r s a u t h o r iz in g it s N a t io n a l P r e s id e n t t o c o m m e n c e t h e p r e s e n t a c t io n . N o t w it h s t a n d in g , in v ie w of th e p a ra m o u n t im p o r t a n c e an d th e

c o n s t it u t io n a l

s ig n if ic a n c e o f t h e is s u e s r a is e d i n t h e p e t it io n s , t h is C o u r t , in t h e e x e r c is e o f it s s o u n d d is c r e t io n , b r u s h e s a s id e th e p r o c e d u r a l b a r r ie r a n d t a k e s c o g n iz a n c e
[2 0 ]

o f th e

p e t it io n s ,

a s w e h a v e d o n e in t h e e a r ly E m e r g e n c y P o w e r s C a s e s , r u le :

w h e r e w e h a d o c c a s io n t o

x x x o r d in a r y c i t i z e n s a n d t a x p a y e r s w e r e a l l o w e d to q u e s t i o n th e c o n s t i t u t i o n a l i t y o f s e v e r a l e x e c u t i v e o r d e r s i s s u e d b y P r e s id e n t Q u i r in o a l t h o u g h t h e y w e r e i n v o l v in g o n l y a n i n d i r e c t a n d g e n e r a l in t e r e s t s h a r e d in c o m m o n w i th th e p u b l i c . T h e C o u r t d i s m i s s e d t h e o b j e c t i o n th a t t h e y w e r e n o t p r o p e r p a r t i e s a n d r u l e d th a t t r a n s c e n d e n t a l im p o r ta n c e to th e p u b lic o f th e s e c a s e s d e m a n d s t h a t t h e y b e s e t t l e d p r o m p t ly a n d d e f in i t e l y , b r u s h i n g a s id e , if w e m u s t , t e c h n i c a l it i e s o f p r o c e d u r e . W e h a v e s in c e th e n a p p lie d th e e x c e p tio n in m a n y o th e r c a s e s . (A s so c ia tio n o f S m a ll L a n d o w n e r s in th e P h ilip p in e s, I n c . v . S e c . o f A g r a r ia n R e f o r m , 1 7 5 S C R A 3 4 3 ) . (U n d e r s c o r in g S u p p lie d )


T h is p r in c ip l e
[2 1 ]

w as vs.

r e it e r a t e d S in g s o n ,
[2 2 ]

in

th e

su bsequent vs. P h il.

cases

o f G o n z a le s and

vs.

C O M E LE C ,

D aza

and B asco

A m usem ent

G a m in g

C o rp o ra tio n ,

[2 3 ]

w h e r e w e e m p h a t ic a lly h e ld :

C o n s i d e r i n g h o w e v e r th e im p o r t a n c e to th e p u b l i c o f th e c a s e a t b a r , a n d i n k e e p in g w i t h th e C o u r t s d u t y , u n d e r th e 1 9 8 7 C o n s t i t u t i o n , t o d e t e r m in e w h e t h e r o r n o t t h e

o t h e r b r a n c h e s o f th e g o v e r n m e n t h a v e k e p t t h e m s e l v e s w i t h in th e l i m i t s o f t h e C o n s t i t u t i o n a n d th e l a w s a n d th a t t h e y h a v e n o t a b u s e d t h e d i s c r e t i o n g iv e n t o t h e m , th e C o u r t h a s b r u s h e d a s id e te c h n ic a litie s o f p ro c e d u r e a n d h a s ta k e n c o g n iz a n c e o f th is p e titio n . x x x
A g a in , in t h e m o r e r e c e n t c a s e o f K il o s b a y a n v s . G u i n g o n a , J r . , th a t in cases of and tra n s c e n d e n ta l a llo w a im p o r t a n c e , t h e C o u rt w h ere m ay
[2 4 ]

t h is C o u r t r u le d th e s ta n d in g

re la x no

re q u ire m e n ts

s u it t o p r o s p e r e v e n

th e re is

d ir e c t i n j u r y t o

th e p a rty c laim in g th e rig h t o f ju d ic ial re v iew . A lt h o u g h c o u r t s g e n e r a l ly a v o i d h a v in g t o d e c id e a c o n s t it u t io n a l q u e s t io n b a s e d o n th e d o c t r in e of a s e p a r a t io n b e c o m in g of p o w e rs , fo r w h ic h each e n jo in s o th ers upon a c ts ,


[2 5 ]

th e t h is

d e p a rtm e n ts C o u rt

of

th e

g o v e rn m e n t

re s p e c t

n e v e r t h e le s s

r e s o lv e s t o t a k e c o g n iz a n c e o f t h e in s t a n t p e t it io n s .

A P P L IC A B L E C O N S T IT U T IO N A L P R O V IS IO N

O n e f o c a l p o in t o f in q u ir y in t h is c o n t r o v e r s y is t h e d e t e r m in a t io n o f w h ic h p r o v is i o n o f t h e C o n s t it u t io n a p p l ie s , w it h r e g a r d t o t h e e x e r c is e b y t h e s e n a t e o f it s c o n s t it u t io n a l pow er to concur w it h th e V F A . P e t it io n e r s V FA a rg u e th a t S e c t io n 25, A r t ic le X V I II is

a p p lic a b le

c o n s id e r in g t h a t t h e

h a s f o r it s s u b j e c t t h e p r e s e n c e

o f f o r e ig n m i lit a r y

t r o o p s in t h e P h ilip p in e s . R e s p o n d e n t s , o n t h e c o n t r a r y , m a in t a in t h a t S e c t io n 2 1 , A r t ic le V I I s h o u ld a p p ly in a s m u c h w h ic h a s th e V FA is n o t a b a s in g a rra n g e m e n t b u t a n a g re e m e n t in j o in t

in v o lv e s m e r e ly t h e t e m p o r a r y v is it s o f U n it e d S t a t e s p e r s o n n e l e n g a g e d

m ilit a r y e x e r c is e s . T h e 1 9 8 7 P h i lip p in e of th e S e n a te on C o n s t it u t io n c o n t a in s t w o p r o v is i o n s r e q u ir in g t h e c o n c u r r e n c e or in t e r n a t io n a l a g r e e m e n t s . S e c t io n 21, A r t ic le V II, w h ic h

t r e a t ie s

h e r e in r e s p o n d e n t s in v o k e , r e a d s :

N o t r e a ty o r i n t e r n a t io n a l a g r e e m e n t s h a l l b e v a l i d a n d e f f e c t i v e u n l e s s c o n c u r r e d i n b y a t l e a s t tw o - t h ir d s o f a l l t h e M e m b e r s o f t h e S e n a t e .

S e c t io n 2 5 , A r t ic le X V I I I , p r o v id e s :

A f t e r t h e e x p ir a t i o n in 1 9 9 1 o f t h e A g r e e m e n t b e tw e e n t h e R e p u b l i c o f th e P h i l i p p in e s a n d th e U n i t e d S t a t e s o f A m e r i c a c o n c e r n in g M i l i t a r y B a s e s , f o r e i g n m i l i t a r y b a s e s , t r o o p s , o r f a c i l i t i e s s h a l l n o t b e a l l o w e d in th e P h i l i p p i n e s e x c e p t u n d e r a t r e a t y d u ly c o n c u r r e d in b y th e s e n a t e a n d , w h e n th e C o n g r e s s s o r e q u i r e s , r a t i f i e d b y a m a j o r i t y o f th e v o t e s c a s t b y th e p e o p l e i n a n a t i o n a l r e f e r e n d u m h e ld f o r th a t p u r p o s e , a n d r e c o g n i z e d a s a t r e a t y b y th e o t h e r c o n t r a c t i n g S t a t e .

S e c t io n 2 1 , A r t ic le

V I I d e a ls w it h

t r e a t is e o r in t e r n a t io n a l a g r e e m e n t s in g e n e r a l, in

w h ic h c a s e , t h e c o n c u r r e n c e o f a t le a s t t w o - t h ir d s ( 2 / 3 ) o f a ll t h e M e m b e r s o f t h e S e n a t e

is r e q u ir e d t o m a k e t h e s u b je c t t r e a t y , o r in t e r n a t io n a l a g r e e m e n t , v a lid a n d b in d in g th e p a rt of th e P h ilip p i n e s . T h is p r o v is io n la y s do w n th e g e n e r a l r u le on t r e a t is e

on or

in t e r n a t io n a l a g r e e m e n t s a n d a p p l ie s t o a n y f o r m m a t t e r, such as, but not or lim it e d to , e x t r a d it io n

o f t r e a t y w it h a w id e v a r ie t y o f s u b je c t or ta x t r e a t is e in t o or th o s e by th e e c o n o m ic in

n a t u r e . A ll

t r e a t ie s

in t e r n a t io n a l

a g re e m e n ts

e n te re d

P h ilip p in e s ,

r e g a r d le s s o f s u b je c t m a t t e r , c o v e r a g e , o r p a r t ic u la r d e s ig n a t io n o r a p p e ll a t io n , r e q u ir e s t h e c o n c u r r e n c e o f t h e S e n a t e t o b e v a lid a n d e f f e c t iv e . In w h ic h c o n t r a s t , S e c t io n in v o lv e th e 2 5 , A r t ic le of X V I I I is f o r e ig n th e a s p e c ia l p r o v is io n bases, of th e t h a t a p p li e s t o or is f a c ilit ie s o n ly one t r e a t ie s in of th e th e

p re s e n c e t h is

m ilit a r y

tro o p s S e n a te

P h il ip p i n e s . U n d e r

p r o v is io n ,

c o n c u rr e n c e

r e q u is it e s t o r e n d e r c o m p li a n c e w it h t h e c o n s t i t u t io n a l r e q u ir e m e n t s a n d t o c o n s id e r t h e a g re e m e n t f o r e ig n b in d in g on th e P h ilip p in e s . S e c t io n 25, A r t ic le a l lo w e d X V III in th e f u rt h e r r e q u ir e s o n ly th a t by

m ilit a r y b a s e s , t r o o p s , o r f a c ilit ie s m a y b e

P h ili p p in e s

v ir t u e o f a t r e a t y d u ly c o n c u r r e d in b y t h e S e n a t e , r a t if ie d b y a m a jo r it y o f t h e v o t e s c a s t in a n a t io n a l re fe re n d u m h e ld fo r th a t p u rp o s e if so r e q u ir e d by C o n g re s s , and

r e c o g n iz e d a s s u c h b y t h e o t h e r c o n tr a c t in g s t a t e . I t is o u r c o n s id e r e d v ie w th a t b o th c o n s t it u t io n a l p r o v is io n s , f a r f r o m c o n t r a d ic t in g

e a c h o t h e r , a c t u a lly s h a r e s o m e em body p h ra s e s in th e n e g a t iv e

c o m m o n g r o u n d . T h e s e c o n s t it u t io n a l p r o v is io n s b o t h and th u s , a re deem ed p r o h ib it o r y in m a n d a te and

c h a r a c t e r . I n p a r t ic u la r , S e c t io n 2 1 o p e n s w it h t h e c la u s e N o t r e a t y x x x , a n d S e c t io n 25 c o n t a in s th e of p h ra s e th e s h a ll is n ot be a llo w e d . A d d it io n a lly , to re n d e r th e in b o th in s t a n c e s , or th e

c o n c u rre n c e

S e n a te

in d is p e n s a b le

tre a ty

in t e r n a t io n a l

a g r e e m e n t v a lid a n d e f f e c t iv e . To S e c t io n our m in d , th e fa c t th a t th e P r e s id e n t S e n a te case, r e f e rr e d th e V FA to th e S e n a te under sam e V II or

2 1 , A r t ic le is

V II, a n d

th a t th e in

e x te n d e d w h e th e r

it s c o n c u r r e n c e under S e c t io n

u n d e r th e A r t ic le

p r o v is io n ,

im m a t e r ia l. F o r

e it h e r

21,

S e c t io n 2 5 , A r t ic le

X V I I I , t h e f u n d a m e n t a l la w

is c r y s t a ll in e t h a t t h e c o n c u r r e n c e o f t h e

S e n a t e is m a n d a t o r y t o c o m p ly w it h t h e s t r ic t c o n s t it u t io n a l r e q u ir e m e n t s . O n S ta te s g o v e rn th e w h o le , and v is it s th e V FA is an a g re e m e n t th e w h ic h d e f in e s th e tre a tm e n t fo r th e of U n it e d to

tr o o p s such

p e r s o n n e l v is it in g o f m ilit a r y

P h ili p p in e s . I t and f u rt h e r

p r o v id e s th e

g u id e lin e s o f th e

p e r s o n n e l,

d e f in e s

r ig h t s

U n it e d

S t a t e s a n d t h e P h i lip p in e g o v e r n m e n t in t h e m a t t e r o f c r im in a l ju r is d ic t io n , m o v e m e n t o f v e s s e l a n d a ir c r a f t , im p o r t a t io n a n d e x p o r t a t io n o f e q u ip m e n t , m a t e r ia ls a n d s u p p lie s . U n d o u b t e d ly , S e c t io n 25, A r t ic le X V III, w h ic h s p e c if ic a lly d e a ls w it h t r e a t ie s

in v o lv in g f o r e ig n m il it a r y b a s e s , t r o o p s , o r f a c il it ie s , s h o u ld a p p ly in t h e in s t a n t c a s e . T o a c e r t a in e x t e n t a n d in a l im it e d s e n s e , h o w e v e r , t h e p r o v is io n s o f s e c t io n 2 1 , A r t ic le V I I w il l f in d a p p lic a b il it y w it h r e g a r d t o t h e is s u e a n d f o r t h e s o le p u r p o s e o f d e t e r m in in g t h e num ber of v o te s r e q u ir e d to o b t a in th e v a lid c o n c u rre n c e of th e S e n a te , as w ill be

f u r t h e r d is c u s s e d h e r e u n d e r . I t is a f in e ly - im b e d d e d p r in c ip le la w in in s t a t u t o r y c o n s t r u c t io n t h a t a s p e c ia l p r o v is i o n o r

p r e v a i ls o v e r a g e n e r a l o n e . L e x s p e c i a l i s d e r o g a t g e n e r a l i . T h u s , w h e r e t h e r e is sam e s ta tu te a p a r t ic u la r e n a c t m e n t a n d w o u ld i n c lu d e w hat is a ls o a g e n e ra l o n e in th e w h ic h , in it s m o s t p a r t ic u la r

th e

c o m p r e h e n s iv e

sense,

e m b ra c e d

f o r m e r, t h e

e n a c t m e n t m u s t b e o p e r a t iv e , a n d t h e g e n e r a l e n a c t m e n t m u s t b e t a k e n t o a f f e c t o n ly such cases w it h in it s
[2 6 ]

g e n e ra l

la n g u a g e

w h ic h

a re

not

w it h in

th e

p r o v is io n

of

th e

p a r t ic u la r e n a c t m e n t .

In L e v e riz a v s . In term e d ia te A p p e llate C o u rt ,

[2 7 ]

w e e n u n c ia t e d :

x x x th a t a n o t h e r b a s i c p r in c i p l e o f s t a tu t o r y c o n s t r u c t i o n m a n d a t e s t h a t g e n e r a l l e g i s l a t i o n m u s t g iv e w a y t o a s p e c i a l l e g i s l a t i o n o n t h e s a m e s u b j e c t , a n d g e n e r a l l y b e s o in t e r p r e t e d a s t o e m b r a c e o n l y c a s e s in w h i c h t h e s p e c i a l p r o v i s io n s a r e n o t a p p l i c a b l e ( S t o . D o m in g o v s . d e l o s A n g e l e s , 9 6 S C R A 1 3 9 ) , t h a t a s p e c i f i c s t a tu t e p r e v a i l s o v e r a g e n e r a l s t a tu t e ( D e J e s u s v s . P e o p l e , 1 2 0 S C R A 7 6 0 ) a n d th a t w h e r e t w o s t a t u t e s a r e o f e q u a l t h e o r e t i c a l a p p l i c a t i o n t o a p a r t i c u l a r c a s e , th e o n e d e s ig n e d t h e r e f o r s p e c i a l l y s h o u ld p r e v a i l ( W i l W i l h e n s e n I n c . v s . B a lu y o t , 8 3 S C R A 3 8 ) .
M o r e o v e r , it is m e re t r a n s ie n t s p e c io u s to fo r a rg u e th e t h a t S e c t io n re a s o n th a t 2 5 , A r t ic le th e re is no X V I I I is in a p p lic a b le p la c i n g to of

a g re e m e n ts

p e rm a n e n t

s t r u c t u r e f o r t h e e s t a b lis h m e n t o f a m il it a r y b a s e . O n t h is s c o r e , t h e C o n s t it u t io n m a k e s n o d is t in c t io n b e t w e e n t r a n s ie n t a n d p e r m a n e n t . C e r t a in ly , w e f in d n o t h in g in S e c t i o n 25, A r t ic le X V III th a t r e q u ir e s f o r e ig n tro o p s or f a c ilit ie s t o be s t a t io n e d or

p la c e d p e r m a n e n t l y in t h e P h ilip p in e s . I t is a r u d im e n t in le g a l h e r m e n u e t ic s t h a t w h e n no d is t in c t io n is m a d e b y la w , t h e

C o u r t s h o u ld n o t d is t in g u is h - U b i l e x n o n d i s t i n g u i t n e c n o s d i s t i n g u i r e d e b e m o s . I n lik e m a n n e r , w e d o n o t s u b s c r ib e t o t h e a r g u m e n t t h a t S e c t io n 2 5 , A r t ic l e X V I I I is n o t c o n t r o llin g a r e in v o lv e d th e t h is s in c e no f o r e ig n m i lit a r y b a s e s , b u t m e r e ly f o r e ig n tro o p s a n d f a c ilit ie s ,

in t h e

V F A . N o t a b ly , a p e r u s a l o f s a id f o r e ig n to m ilit a r y th e bases,

c o n s t it u t io n a l p r o v is io n r e v e a ls t h a t d if f e r e n t ly , any f o r e ig n bases,

p r o s c r ip t io n p r o h ib it io n b e in g

c o v e rs is not

t r o o p s , o r f a c ilit ie s . S t a t e d and re fe r as f a c ilit ie s to w it h o u t

lim it e d

e n tr y

o f tr o o p s not th e m

bases

e s t a b l is h e d . T h e c o lle c t iv e ly of com m a

c la u s e but and of

d oes tre a ts th e one

f o r e ig n

m i lit a r y

t r o o p s , o r f a c ilit ie s s u b je c t s . T h e d is a s s o c ia t io n e n u m e r a t io n ,
[2 8 ]

s e p a ra te w o rd th e th re e o r oth e rs

and

in d e p e n d e n t s ig n if ie s in th e a

use and such

d is ju n c t iv e t h in g fro m

c le a r ly in c lu d e d

in d e p e n d e n c e th a t, th e

p r o v is io n

c o n t e m p la t e s

d if f e r e n t

s it u a t io n s

m ilit a r y t r e a t y t h e s u b je c t o f w h ic h c o u ld b e e it h e r ( a ) f o r e ig n b a s e s , ( b ) f o r e ig n

tro o p s ,

o r ( c ) f o r e ig n f a c ilit ie s - a n y o f t h e t h r e e s t a n d in g a lo n e p la c e s it u n d e r t h e c o v e r a g e o f S e c t io n 2 5 , A r t ic le X V I I I . To t h is e n d , t h e of in t e n t io n 1986 o f th e fra m e rs o f th e C h a r t e r , a s m a n if e s t e d is c o n s is t e n t d u r in g w it h th e t h is

d e lib e r a t io n s in t e r p r e t a t io n :

th e

C o n s t it u t io n a l

C o m m is s i o n ,

M R . M A A M B O N G . I ju s t w a n t to a d d r e s s a q u e s ti o n o r t w o to C o m m is s io n e r B e r n a s . T h is fo r m u la tio n speaks o f th re e th in g s : fo r e i g n m ilit a r y su ch b a s e s , tro o p s o r f a c ilitie s . M y fir s t

q u e s tio n i s : If t h e

c o u n t r y d o e s e n te r in to

k in d

o f a tr e a ty , m u s t it c o v e r t h e in to c o v e r o n ly o n e o r

th r e e -b a s e s , tr o o p s o r fa c ilitie s -o r c o u ld t h e tr e a ty e n te r e d tw o ?

F R . B E R N A S . D e fin ite l y , it c a n c o v e r o n ly o n e . W h e th e r i t c o v e r s o n ly o n e o r i t c o v e r s th r e e , th e r e q u i r e m e n t w ill b e th e s a m e . M R . M A A M B O N G . In o th e r w o r d s , t h e P h ilip p in e g o v e rn m e n t c a n e n te r in to a tre a ty

c o v e r in g n o t b a s e s b u t m e r e ly tr o o p s ? FR . B E R N A S . Y es. M R . M A A M B O N G . I c a n n o t fin d c o v e r in g o n ly tr o o p s . F R . B E R N A S . W h y n o t? P r o b a b ly if w e s tr e tc h o u r im a g i n a tio n a little b i t m o r e , w e w ill fi n d s o m e . W e ju s t w a n t to c o v e r e v e r y th i n g .


[2 9 ]

an y

re a s o n

w hy

th e

g o v e rn m e n t c a n

e n te r

i n to

tre a ty

( U n d e r s c o r in g S u p p lie d )

M o r e o v e r , m ilit a r y b a s e s e s t a b lis h e d w it h in t h e t e r r it o r y o f a n o t h e r s t a t e is n o lo n g e r v ia b le b e c a u s e o f t h e a lt e r n a t iv e s o f f e r e d b y n e w m e a n s a n d w e a p o n s o f w a rfa re s u c h

a s n u c le a r w e a p o n s , g u id e d m is s ile s a s w e l l a s h u g e s e a v e s s e ls t h a t c a n s t a y a f lo a t in th e sea even fo r m o n th s a re and y e a rs used as w it h o u t r e t u r n in g fo r a to t h e ir hom e c o u n try . T h e s e not o n ly of

m ilit a r y

w a r s h ip s

a c t u a lly

s u b s t it u t e s

la n d - h o m e

base

m ilit a r y a ir c r a f t b u t a ls o o f m ilit a r y p e r s o n n e l a n d f a c il it ie s . B e s id e s , v e s s e ls a r e m o b i le a s c o m p a r e d t o a la n d - b a s e d m ilit a r y h e a d q u a r t e r s . A t t h is ju n c t u r e , w e s h a ll t h e n r e s o lv e t h e is s u e o f w h e t h e r o r n o t t h e r e q u ir e m e n t s o f S e c t io n 2 5 w e r e c o m p lie d w it h w h e n t h e S e n a t e g a v e it s c o n c u r r e n c e t o t h e V F A . S e c t io n 2 5 , A r t ic le th e X V I I I d is a ll o w s f o r e ig n c o n d it io n s b e d u ly a re m il it a r y b a s e s , t r o o p s , o r f a c ilit ie s in s u f f ic ie n t ly in m e t , v iz : ( a ) it m u s t b e by th e S e n a te a n d , th e

c o u n t r y , u n le s s a tre a ty ; (b )

f o llo w in g m ust

under so

th e

tr e a t y

co n cu rred

w hen

r e q u ir e d b y c o n g r e s s , r a t if ie d b y a m a jo r it y o f t h e v o t e s c a s t b y t h e p e o p le in a n a t io n a l r e f e r e n d u m ; a n d ( c ) r e c o g n i z e d a s a t r e a t y b y t h e o t h e r c o n tr a c t in g s t a t e . T h e r e is n o d is p u t e a s t o t h e p r e s e n c e o f t h e f ir s t t w o r e q u is it e s in t h e c a s e o f t h e V FA . The a c c o rd a n c e c o n c u rre n c e w it h th e handed p r o v is io n s by of th e th e S e n a te thro u g h R e s o lu t io n under N o. th e 18 is in

C o n s t it u t io n ,

w h e th e r

g e n e ra l

r e q u ir e m e n t in S e c t io n 2 1 , A r t ic le V I I , o r t h e s p e c if ic m a n d a t e m e n t io n e d in S e c t io n 2 5 , A r t ic le X V III, th e p r o v is io n in th e la t t e r a r t ic le r e q u ir in g r a t if ic a t io n by a m a jo r it y o f t h e

v o t e s c a s t in a n a t io n a l r e f e r e n d u m it .

b e in g u n n e c e s s a r y s in c e C o n g r e s s h a s n o t r e q u ir e d

A s t o t h e m a tt e r o f v o t in g , S e c t i o n 2 1 , A r t i c l e V II p a r t ic u la r ly r e q u ir e s t h a t a t r e a t y o r in t e r n a t io n a l a g r e e m e n t , t o b e v a lid a n d e f f e c t iv e , m u s t b e c o n c u r r e d i n b y a t l e a s t t w o - t h ir d s o f a l l t h e m e m b e r s o f t h e S e n a t e . O n t h e o t h e r h a n d , S e c t io n 2 5 , A r t ic le

X V I I I s im p ly p r o v id e s t h a t t h e t r e a t y b e d u l y c o n c u r r e d i n b y t h e S e n a t e . A p p ly i n g th e f o r e g o in g c o n s t it u t io n a l p r o v is io n s , a t w o - t h ir d s v o te of a ll th e

m e m b e r s o f t h e S e n a t e is c le a r ly r e q u ir e d s o t h a t t h e c o n c u r r e n c e c o n t e m p la t e d b y la w m ay be v a lid ly o b t a in e d and deem ed p r e s e n t . W h ile it is tru e t h a t S e c t io n 2 5 , A r t ic le

X V I I I r e q u ir e s , a m o n g o t h e r t h in g s , t h a t t h e t r e a t y - t h e V F A , in t h e in s t a n t c a s e - b e d u ly c o n c u r r e d in b y t h e S e n a t e , it is v e r y t r u e h o w e v e r t h a t s a id p r o v is io n m u s t b e r e la t e d and v ie w e d in lig h t o f t h e te rm s , c le a r m a n d a t e e m b o d ie d th a t th e in S e c t io n of a 2 1 , A r t ic le tre a ty , or V I I , w h ic h in

m o re

s p e c if ic

r e q u ir e s

c o n c u rre n c e

in t e r n a t io n a l

a g re e m e n t, b e

m ade

by a

tw o

- t h ir d s v o t e

o f a ll t h e

m e m b e rs o f th e

S e n a te . In d e e d ,

S e c t io n 2 5 , A r t ic le X V I I I m u s t n o t b e t r e a t e d in is o la t io n t o s e c t io n 2 1 , A r t ic le , V I I . A s n o te d , th e in c o n c u rr e n c e to th e r e q u ir e m e n t u n d e r S e c t io n o f S e c t io n 2 1 , A r t ic le 2 5 , A r t ic le V II. In a X V III m u s t b e m o re p a r t ic u la r X V III

c o n s tru e d

r e la t io n

p r o v is io n s

la n g u a g e , t h e c o n c u r r e n c e o f t h e

S e n a t e c o n t e m p la t e d

u n d e r S e c t io n 2 5 , A r t ic le

m e a n s t h a t a t le a s t t w o - t h ir d s o f a ll t h e m e m b e r s o f t h e S e n a t e f a v o r a b ly v o t e t o c o n c u r w it h t h e t r e a t y - t h e V F A in t h e in s t a n t c a s e . U n d e r t h e s e c ir c u m s t a n c e s , t h e c h a r t e r p r o v id e s t h a t t h e S e n a t e s h a ll b e c o m p o s e d o f tw e n ty -fo ur (2 4 ) S e n a to rs. not le s s th a n s ix t e e n


[3 0 ]

W it h o u t a t in g e o f d o u b t , t w o - t h ir d s ( 2 / 3 ) o f t h is f ig u r e , o r m e m b e rs , f a v o r a b ly a c t in g on th e p ro p o s a l is an

(1 6 )

u n q u e s t io n a b le c o m p lia n c e

w i t h t h e r e q u is it e n u m b e r o f v o t e s m e n t io n e d in S e c t io n 2 1

o f A r t ic le V I I . T h e f a c t t h a t t h e r e w e r e a c t u a lly t w e n t y - t h r e e ( 2 3 ) in c u m b e n t S e n a t o r s a t th e t im e th e v o t in g w as m ade,
[3 1 ]

w i ll n o t a lt e r in m em b e rs o f th e

a n y s ig n if ic a n t w a y t h e S e n a te c o n c u rre d w it h

c ir c u m s t a n c e th e p ro p o s e d

th a t m o re th a n

t w o - t h ir d s o f t h e

V F A , e v e n if t h e t w o - t h ir d s v o t e r e q u ir e m e n t is b a s e d o n t h is f ig u r e o f a c t u a l m e m b e r s ( 2 3 ) . I n t h is r e g a r d , t h e f u n d a m e n t a l la w is c le a r t h a t t w o - t h ir d s o f t h e 2 4 S e n a t o r s , o r a t le a s t 1 6 f a v o r a b le v o t e s , s u f f ic e s o a s t o r e n d e r c o m p l ia n c e w it h t h e s t r ic t c o n s t it u t io n a l m a n d a t e o f g iv in g c o n c u r r e n c e t o t h e s u b je c t t r e a t y . H a v in g r e s o lv e d th a t th e f ir s t t w o r e q u is it e s p r e s c r ib e d in S e c t io n 2 5 , A r t ic le X V III

a r e p r e s e n t , w e s h a ll n o w p a s s u p o n a n d d e lv e o n t h e r e q u ir e m e n t t h a t t h e V F A s h o u ld b e r e c o g n iz e d a s a t r e a t y b y t h e U n it e d S t a t e s o f A m e r ic a . P e t it io n e r s c o n t e n t t h a t t h e p h r a s e r e c o g n iz e d a s a t r e a t y , e m b o d ie d in s e c t io n 2 5 , A r t ic le S ta te s X V III, m e a n s S e n a te th a t th e to V FA ow n s h o u ld have th e a d v ic e and and c o n s e n t o f th e th a t it s h o u ld U n it e d not be

p u rs u a n t

it s

c o n s t it u t io n a l p r o c e s s ,

c o n s id e r e d m e r e ly a n e x e c u t iv e a g r e e m e n t b y t h e U n it e d S t a t e s . In o p p o s it io n , re s p o n d e n ts a rg u e th a t th e le t t e r of U n it e d S ta te s A m bassador

H u b b a r d s t a t in g t h a t t h e V F A is b in d in g o n t h e U n it e d S t a t e s G o v e r n m e n t is c o n c lu s iv e , on th e p o in t th a t th e V FA is r e c o g n iz e d as a tre a ty by th e U n it e d S ta te s of

A m e r ic a . A c c o r d in g t o r e s p o n d e n t s , t h e V F A , t o b e b in d in g , m u s t o n ly b e a c c e p t e d a s a t r e a t y b y t h e U n it e d S t a t e s . T h is C o u r t is o f t h e f ir m v ie w th a t th e p h ra s e re c o g n iz e d a s a tre a ty m e a n s th a t
[3 2 ]

t h e o t h e r c o n t r a c t in g p a r t y a c c e p t s o r a c k n o w l e d g e s t h e a g r e e m e n t a s a t r e a t y . r e q u ir e th e o th e r V FA
[3 3 ]

To to it s

c o n t r a c t in g s t a t e , to th e U n it e d

th e

U n it e d S e n a te

S ta te s fo r

of

A m e r ic a

in

t h is

case, to

s u b m it t h e C o n s t it u t io n ,

S ta te s

c o n c u rre n c e

p u rs u a n t

is t o a c c o r d s t r ic t m e a n in g t o t h e p h r a s e . is t h e p r in c ip le th a t th e w o rd s u s e d in th e C o n s t it u t io n a re to be

W e ll- e n t r e n c h e d

g iv e n t h e ir o r d in a r y m e a n in g e x c e p t w h e r e t e c h n ic a l t e r m s a r e e m p lo y e d , in w h ic h c a s e th e s ig n if ic a n c e th u s a tta c h e d to th e m
[3 4 ]

p r e v a i ls . I t s la n g u a g e

s h o u ld

be

u n d e rs to o d

in

t h e s e n s e t h e y h a v e in c o m m o n u s e .

M o r e o v e r , it is in c o n s e q u e n t ia l w h e t h e r t h e U n it e d S t a t e s t r e a t s t h e V F A o n ly a s a n e x e c u t iv e b in d in g a g r e e m e n t b e c a u s e , u n d e r in t e r n a t io n a l la w , a n tre a ty .
[3 5 ]

e x e c u t iv e

a g r e e m e n t is

as

as a

To

be

s u r e , a s lo n g

as

th e

V F A

p o s s e s s e s th e

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a g re e m e n t tre a ty . A

under

in t e r n a t io n a l la w ,

th e

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to

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ta k e n

e q u a lly

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tre a ty ,

as

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by

th e

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C o n v e n t io n S ta te s in

on

th e

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of

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is

a n by

in t e r n a t io n a l

in s t r u m e n t

c o n c lu d e d

b e tw e e n in a

w r it t e n
[3 6 ]

and

g o v e rn e d

in t e r n a t io n a l la w , w h e t h e r e m b o d ie d in s t r u m e n t s , used fo r a and w h a te v e r or it s

s in g le

in s t r u m e n t o r in T h e re of

tw o

o r m o re o th e r

r e la t e d te rm s

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d e s ig n a t io n .

a re

m any a re :

tre a ty

in t e r n a t io n a l

a g re e m e n t,

som e

w h ic h

a c t,

p r o t o c o l,

a g r e e m e n t , c o m p r o m i s d a r b i tr a g e , c o n c o r d a t , c o n v e n t io n , d e c la r a t io n , e x c h a n g e o f n o t e s , p a c t , s t a t u t e , c h a r t e r a n d m o d u s v iv e n d i. A ll w r it e r s , f r o m p o in t e d out th a t th e nam es or t it le s of H ugo G r o t iu s o n w a r d , h a v e in c lu d e d under th e

in t e r n a t io n a l a g r e e m e n t s

g e n e ra l te rm

t r e a t y h a v e lit t le o r n o le g a l s ig n if ic a n c e . C e r t a in t e r m s a r e u s e f u l, b u t t h e y
[3 7 ]

f u r n is h lit t le m o r e t h a n m e r e d e s c r ip t io n . A r t ic le 2 (2 ) o f th e V ie n n a

C o n v e n t io n

p r o v id e s t h a t t h e

p r o v is io n s o f p a r a g r a p h

r e g a r d in g t h e u s e o f t e r m s in t h e p r e s e n t C o n v e n t io n a r e w it h o u t p r e j u d ic e t o t h e u s e o f t h o s e t e r m s , o r t o t h e m e a n in g s w h ic h m a y b e S ta te . Thus, in in t e r n a t io n a l la w , in t h e ir b in d in g th e re is no d if f e r e n c e b e tw e e n t r e a t ie s lo n g as and th e e x e c u t iv e n e g o t ia t in g g iv e n to th e m in t h e i n t e r n a l la w o f th e

a g re e m e n ts

e ffe c t u p o n

sta te s

c o n c e rn e d , a s
[3 8 ]

f u n c t io n a r ie s h a v e r e m a in e d no d is t in c t io n b e tw e e n

w it h in t h e ir p o w e r s . and e x e c u tiv e

I n t e r n a t io n a l l a w th e y

c o n t in u e s t o m a k e a re e q u a l ly b in d i n g

t r e a t ie s
[3 9 ]

a g re e m e n ts :

o b lig a t io n s u p o n n a t io n s . In even

o u r ju r is d ic t io n , w e w it h o u t th e

have

r e c o g n iz e d of th e
[4 0 ]

th e

b in d in g or

e f f e c t o f e x e c u t iv e

a g re e m e n ts of

c o n c u rre n c e

S e n a te

C o n g re s s . In C o m m is s io n e r

C u s to m s v s . E a s te rn S e a T ra d in g ,

w e h a d o c c a s io n t o p r o n o u n c e :

x x x th e r i g h t o f t h e E x e c u t i v e to e n t e r i n to b i n d i n g a g r e e m e n t s w i t h o u t th e n e c e s s i ty o f s u b s e q u e n t c o n g r e s s io n a l a p p r o v a l h a s b e e n c o n f i r m e d b y lo n g u s a g e . F r o m t h e e a r l i e s t d a y s o f o u r h i s to r y w e h a v e e n t e r e d i n to e x e c u t i v e a g r e e m e n t s c o v e r in g s u c h s u b j e c t s a s c o m m e r c i a l a n d c o n s u l a r r e l a t i o n s , m o s t f a v o r e d - n a t i o n r ig h t s , p a t e n t r ig h t s , tr a d e m a r k a n d c o p y r ig h t p r o t e c t i o n , p o s t a l a n d n a v ig a tio n a r r a n g e m e n ts a n d th e s e ttle m e n t o f c la im s. T h e v a lid ity o f th e s e h a s n e v e r b e e n s e r io u s l y q u e s t i o n e d b y o u r c o u r t s .


x x x x x x x x x

F u r t h e r m o r e , th e U n i t e d S t a t e s S u p r e m e C o u r t h a s e x p r e s s l y r e c o g n i z e d th e v a l i d i t y a n d c o n s t i t u t i o n a l i t y o f e x e c u t iv e a g r e e m e n t s e n t e r e d in t o w i th o u t S e n a t e a p p r o v a l . ( 3 9 C o l u m b i a L a w R e v i e w , p p . 7 5 3 - 7 5 4 ) ( S e e , a l s o , U .S . v s . C u r t i s W r i g h t E x p o r t C o r p o r a t io n , 2 9 9 U . S . 3 0 4 , 8 1 L . e d . 2 5 5 ; U . S . v s . B e l m o n t , 3 0 1 U .S . 3 2 4 , 8 1 L . e d . 1 1 3 4 ; U .S . v s . P i n k , 3 1 5 U .S . 2 0 3 , 8 6 L . e d . 7 9 6 ; O z a n i c v s . U . S . 1 8 8 F . 2 d . 2 8 8 ; Y a le L a w J o u r n a l, V o l. 1 5 p p . 1 9 0 5 -1 9 0 6 ; C a lif o r n ia L a w R e v ie w , V o l . 2 5 , p p . 6 7 0 - 6 7 5 ; H y d e o n I n t e r n a t i o n a l L a w [ r e v i s e d E d i t io n ] , V o l . 2 , p p .

1 4 0 5 , 1 4 1 6 - 1 4 1 8 ; w i l l o u g h b y o n t h e U . S . C o n s t it u t i o n L a w , V o l . I [ 2 d e d . ] , p p . 5 3 7 - 5 4 0 ; M o o r e , I n t e r n a t io n a l L a w D i g e s t , V o l . V , p p . 2 1 0 - 2 1 8 ; H a c k w o r t h , I n t e r n a t io n a l L a w D i g e s t , V o l . V , p p . 3 9 0 - 4 0 7 ) . ( I t a l i c s S u p p l i e d ) ( E m p h a s i s O u r s)
The d e l ib e r a t io n s of th e C o n s t it u t io n a l C o m m is s io n w h ic h d ra fte d th e 1987

C o n s t it u t io n is e n lig h t e n in g a n d h i g h ly - in s t r u c t iv e :
M R . M A A M B O N G . O f c o u r s e it g o e s w ith o u t s a y in g th a t a s fa r a s r a tific a tio n o f th e o th e r

s ta te is c o n c e r n e d , th a t is e n ti r e ly th e ir c o n c e r n u n d e r th e ir o w n la w s . FR . B E R N A S . Y es, b ut w e w ill a c c e p t w h a te v e r th e y s a y . If th e y say th a t w e ha ve do ne a

e v e r y th in g to m a k e it a tr e a ty , th e n a s f a r a s w e a r e c o n c e r n e d , w e tre a ty .
[4 1 ]

w ill a c c e p t it a s

The

re c o rd s

re v e a l

th a t

th e

U n it e d
[4 2 ]

S ta te s

G o v e rn m e n t,

th ro u g h

A m bassador

T h o m a s C . H u b b a r d , h a s s t a t e d t h a t t h e U n it e d S t a t e s g o v e r n m e n t h a s f u lly c o m m it t e d to liv in g up to th e te rm s o f th e V FA . For as lo n g as th e u n it e d S ta te s o f A m e r ic a

a c c e p t s o r a c k n o w le d g e s t h e V F A a s a t r e a t y , a n d b in d s it s e lf f u r t h e r t o c o m p ly w it h it s o b lig a t io n s u n d e r t h e t r e a t y , t h e r e is in d e e d m a r k e d c o m p lia n c e w it h t h e m a n d a t e o f t h e C o n s t it u t io n . W o rth s tr e s s in g t o o , is t h a t t h e r a t if ic a t io n , b y t h e P r e s id e n t , o f t h e V FA and th e

c o n c u r r e n c e o f t h e S e n a t e s h o u ld b e t a k e n a s a c le a r a n u n e q u iv o c a l e x p r e s s io n o f o u r n a t io n s c o n s e n t to be bound by s a id tr e a t y , w it h th e c o n c o m it a n t d u t y t o u p h o ld th e

o b lig a t io n s a n d r e s p o n s ib i lit ie s e m b o d ie d t h e r e u n d e r . R a t if ic a t io n is g e n e r a lly h e ld t o b e a n e x e c u t iv e a c t , u n d e r t a k e n b y t h e h e a d o f t h e s t a t e o r o f t h e g o v e r n m e n t, a s t h e c a s e m a y b e , t h r o u g h w h ic h t h e f o r m a l a c c e p t a n c e o f t h e t r e a t y is p r o c la im e d .


[4 3 ]

A S t a t e m a y p r o v id e in it s d o m e s t ic le g is la t io n t h e p r o c e s s o f

r a t if ic a t io n o f a t r e a t y . T h e c o n s e n t o f t h e S t a t e t o b e b o u n d b y a t r e a t y is e x p r e s s e d b y r a t if ic a t io n e s t a b lis h e d th e w hen: (a ) th e tre a ty p r o v id e s fo r such r a t if ic a t io n , (b ) it b e is o t h e r w is e

th a t th e

n e g o t ia t in g S ta te s ig n

S ta te s a g re e d has th e s ig n e d tre a ty th e

t h a t r a t if ic a t io n

s h o u ld

r e q u ir e d , ( c ) th e f u ll

r e p r e s e n t a t iv e of th e

o f th e to

t r e a t y s u b je c t t o to r a t if ic a t io n

r a t if ic a t io n , o r ( d ) a p p e a rs
[4 4 ]

in t e n t io n

S ta te

s u b je c t

fro m

th e

p o w e r s o f it s r e p r e s e n t a t iv e , o r w a s e x p r e s s e d d u r in g t h e n e g o t ia t io n . In our ju r is d ic t io n , th e pow er to r a t if y is v e s te d in th e

P r e s id e n t

and

n o t,

as

c o m m o n ly b e lie v e d , in t h e le g is la t u r e . T h e r o le o f t h e S e n a t e is lim it e d o n ly t o g iv in g o r w it h h o ld in g it s c o n s e n t , o r c o n c u r r e n c e , t o t h e r a t if ic a t io n .
[4 5 ]

W it h t h e r a t if ic a t io n o f t h e V F A , w h ic h is e q u iv a le n t t o f in a l a c c e p t a n c e , a n d w it h t h e exchange o f n o te s b e tw e e n th e P h il ip p in e s and th e U n it e d S t a t e s o f A m e r ic a , i t n o w

b e c o m e s o b lig a t o r y a n d in c u m b e n t o n o u r p a r t , u n d e r t h e p r in c ip le s o f in t e r n a t io n a l la w , to th e be bound b y t h e t e rm s o f t h e
[4 6 ]

a g re e m e nt. T h u s , n o th e P h ilip p in e s

le s s t h a n th e

S e c t io n

2 , A r t ic le

II o f

C o n s t it u t io n ,

d e c la r e s

th a t

a d o p ts

g e n e r a lly

a c c e p te d

p r in c ip le s o f i n t e r n a t io n a l la w

a s p a r t o f t h e la w o f t h e la n d a n d a d h e r e s t o t h e p o l ic y o f

p e a c e , e q u a lit y , ju s t ic e , f r e e d o m , c o o p e r a t io n a n d a m it y w it h a ll n a t io n s .

A s

m em ber a c c e p te d

of

th e

f a m ily fo r

of

n a t io n s , con duct th e it s

th e of

P h ilip p in e s it s and

a g re e s

to

be

bound

by th e

g e n e r a lly

r u le s

th e

in t e r n a t io n a l not upon th e

r e la t io n s . W h ile

in t e r n a t io n a l o b li g a t io n in s t it u t io n , r e s p o n s ib le or in d iv i d u a l

d e v o lv e s m em ber

upon of

s ta te

any

p a r t ic u la r b r a n c h , is n o n e t h e le s s

g o v e rn m e n t,

P h ili p p in e s

f o r v io la t io n s c o m m it t e d b y a n y b r a n c h

o r s u b d iv is io n o f it s g o v e r n m e n t o r

a n y o f f ic ia l t h e r e o f . A s a n in t e g r a l p a r t o f t h e c o m m u n it y o f n a t io n s , w e a r e r e s p o n s ib le to a s s u re t h a t o u r g o v e r n m e n t , C o n s t it u t io n
[4 7 ]

and th e

la w s

w i ll c a r r y

o u t o u r in t e r n a t io n a l c o n v e n ie n t e x c u s e

o b lig a t io n .

H ence, w e w it h

c a n n o t r e a d ily

p le a d

C o n s t it u t io n

as a

f o r n o n - c o m p lia n c e la w .

o u r o b l ig a t io n s , d u t ie s a n d

r e s p o n s ib il it ie s u n d e r in t e r n a t io n a l

B e y o n d t h is , A r t ic le 1 3 o f t h e D e c l a r a t io n o f R i g h t s a n d D u t ie s o f S t a t e s a d o p t e d b y t h e I n t e r n a t io n a l L a w o u t in good f a it h C o m m is s io n in 1 9 4 9 p ro v id e s : E v e ry S ta te h a s th e d u ty to c a rry fro m in it s t r e a t ie s a n d c o n s t it u t io n o t h e r s o u r c e s o f in t e r n a t io n a l o r it s la w s as an excuse fo r

it s o b lig a t io n s a r is in g n o t in v o k e p r o v is io n s
[4 8 ]

la w , a n d

it m a y

f a ilu r e t o p e r f o r m t h is d u t y .

E q u a l ly im p o r t a n t is A r t ic le 2 6 o f t h e c o n v e n t io n w h ic h p r o v id e s t h a t E v e r y t r e a t y in fo rc e is b in d in g is upon th e as p a r t ie s to it and m ust be p e rfo rm e d by th e m in good th e

f a it h . T h is

know n

th e

p r in c ip le been on e

o f p a c ta o f th e

sunt

s e r v a n d a w h ic h

p re s e rv e s

s a n c t it y o f t r e a t ie s a n d

have

m o s t f u n d a m e n t a l p r in c ip l e s o f p o s it iv e
[4 9 ]

in t e r n a t io n a l la w , s u p p o r t e d b y t h e ju r is p r u d e n c e o f in t e r n a t io n a l t r ib u n a ls .

N O G R A V E A B U S E O F D IS C R E T IO N

I n t h e in s t a n t c o n t r o v e r s y , t h e P r e s id e n t , in e f f e c t , is h e a v i ly f a u lt e d f o r e x e r c is in g a p o w e r a n d p e r f o r m in g a t a s k c o n f e r r e d u p o n h im in t o and r a t if y t r e a t ie s . T h r o u g h c o n s o lid a t e d in th e e x p e d ie n c y b y t h e C o n s t it u t io n - t h e p o w e r t o e n t e r of R u le 65 of th e R u le s of C o u r t, p a rt

p e t it io n e r s in of th e c h ie f

th e s e

c a s e s im p u t e g r a v e th e V F A , and

abuse

o f d is c re tio n o n th e sam e to th e

th e

E x e c u t iv e

r a t if y in g

r e f e r r in g

S e n a te

p u r s u a n t t o t h e p r o v is io n s o f S e c t io n 2 1 , A r t ic le V I I o f t h e C o n s t it u t io n . O n t h is p a r t ic u la r of m a tt e r, g ra v e as abuse is o f d is c r e t io n to la c k im p lie s of such c a p r ic i o u s o r, w h e n and th e

w h im s ic a l e x e r c is e

ju d g m e n t

e q u iv a le n t

ju r is d ic t io n ,

p o w e r is e x e r c is e d in a n a r b it r a r y o r d e s p o t ic m a n n e r b y r e a s o n o f p a s s io n o r p e r s o n a l h o s t ilit y , a n d it m u s t b e s o p a t e n t a n d g r o s s a s t o a m o u n t t o a n e v a s io n o f p o s it iv e d u t y e n jo in e d o r t o a c t a t a ll in c o n t e m p la t io n o f la w .
[5 0 ]

B y c o n s t it u t io n a l f ia t a n d b y t h e in t r in s ic n a t u r e o f h is o ff ic e , t h e P r e s id e n t , a s h e a d o f S t a t e , is t h e s o le o rg a n and a u t h o r it y in th e e x t e r n a l a ff a ir s o f t h e
[5 1 ]

c o u n tr y . I n m a n y

w a y s , t h e P r e s id e n t is t h e c h ie f a r c h it e c t o f t h e n a t io n s f o r e ig n p o lic y ; h is d o m in a n c e in th e h is f ie ld o f f o r e ig n in th e r e la t io n s is ( t h e n ) c o n c e d e d . e x t e r n a l a ff a ir s o f th e W ie ld in g v a s t p o w e rs a n d e s c r ib e s , is in f lu e n c e , e x e c u tiv e

conduct
[5 2 ]

n a t io n , a s

J e ff e r s o n

a lto g e th e r . "

A s

re g a rd s

th e

pow er

to

e n te r

in t o

t r e a t ie s

or

in t e r n a t io n a l

a g re e m e n ts ,

th e

C o n s t it u t io n v e s t s t h e s a m e in t h e P r e s id e n t , s u b je c t o n ly t o t h e c o n c u r r e n c e o f a t le a s t

t w o - t h ir d s v o t e o f a ll t h e m e m b e r s o f t h e S e n a t e . I n t h is lig h t , t h e n e g o t ia t io n o f t h e V F A a n d t h e s u b s e q u e n t r a t if ic a t io n o f t h e a g r e e m e n t a r e e x c lu s iv e a c t s w h ic h p e r t a in s o le ly to th e P r e s id e n t , in th e la w f u l e x e r c is e of h is vast e x e c u t iv e and d ip lo m a t ic


[5 3 ]

p o w e rs

g r a n t e d h im S e n a te th e a c ts

n o l e s s t h a n b y t h e f u n d a m e n t a l la w C o n g re s s o f th e

it s e lf . I n t o t h e f ie ld o f n e g o t ia t i o n t h e to in v a d e it . C o n s e q u e n t ly , th e a c ts of

c a n n o t in t r u d e , a n d o r ju d g m e n t c a lls

it s e lf is p o w e r le s s th e

P r e s id e n t in v o lv in g

V F A - s p e c if ic a lly

r a t if ic a t io n a n d e n t e r in g in t o a tr e a t y a n d t h o s e n e c e s s a r y o r in c id e n t a l t o t h e e x e r c is e o f s u c h p r in c ip a l a c t s - s q u a r e ly f a ll w it h in t h e s p h e r e o f h is c o n s t it u t io n a l p o w e r s a n d t h u s , m ay not be v a lid ly s t r u c k d o w n , m u c h le s s c a lib r a t e d b y t h is C o u r t , in th e absence of

c le a r s h o w in g o f g r a v e a b u s e o f p o w e r o r d is c r e t io n . It is th e C o u r t s c o n s id e r e d v ie w th a t th e P r e s id e n t , in r a t if y in g th e V FA and in

s u b m it t in g t h e s a m e t o t h e S e n a t e f o r c o n c u r r e n c e , a c t e d w it h in t h e c o n f in e s a n d lim it s o f t h e p o w e r s v e s t e d in h im b y t h e C o n s t it u t io n . I t is o f n o m o m e n t t h a t t h e P r e s id e n t , in

t h e e x e r c is e o f h is w id e la t it u d e o f d is c r e t io n a n d in t h e h o n e s t b e lie f t h a t t h e V F A f a lls w it h in th e a m b it o f S e c t io n c o n c u rre n c e m uch th e le s s a 2 1 , A r t ic le th e V II o f th e C o n s t it u t io n , r e f e r r e d th e V FA to th e of be th e

S e n a te

fo r

under g ra v e ,

a f o r e m e n t io n e d and

p r o v is io n . C e r t a in ly , abus e an d of

no

abuse m ay to

d is c r e t io n , im p u t e d to

p a te n t

w h im s ic a l th e V FA

ju d g m e n t , th e

P r e s id e n t in

h is a c t o f r a t if y in g

r e f e r r in g

sam e

S e n a t e f o r t h e p u r p o s e o f c o m p ly i n g w it h t h e c o n c u r r e n c e r e q u ir e m e n t e m b o d ie d i n t h e f u n d a m e n t a l la w . I n d o in g s o , t h e P r e s id e n t m e r e ly p e r f o r m e d a c o n s t it u t io n a l t a s k a n d e x e r c is e d e rre d in a p r e r o g a t iv e th e t h a t c h ie f ly V FA to th e p e r t a in s S e n a te to fo r 25 th e f u n c t io n s o f h is under o f f ic e . E v e n th e if h e of

s u b m it t in g 21 o f A r t ic le

c o n c u rre n c e

p r o v is io n s

S e c t io n

V I I, in s t e a d

o f S e c t io n

o f A r t ic le

X V III o f th e

C o n s t it u t io n , s t ill,

t h e P r e s id e n t m a y n o t b e f a u lt e d o r s c a r r e d , m u c h le s s b e a d ju d g e d g u ilt y o f c o m m it t in g a n a b u s e o f d is c r e t io n in s o m e p a t e n t , g r o s s , a n d c a p r ic io u s m a n n e r . For w h ile th e it is conceded of th a t A r t ic le in q u ir y V III, in t o S e c t io n a re a s 1, of th e le f t C o n s t it u t io n to th e has

b ro a d e n e d

scope

ju d ic ia l

n o r m a lly

p o lit ic a l

d e p a r t m e n t s t o d e c id e , s u c h a s t h o s e r e la t in g t o n a t io n a l s e c u r it y , it h a s n o t a lt o g e t h e r done aw ay
[5 4 ]

w it h The

p o lit ic a l q u e s t io n s H ig h T r ib u n a ls

such

as as

th o s e

w h ic h

a r is e by

in

th e

f ie ld

of

f o r e ig n 1 , is

r e la t io n s .

f u n c t io n ,

s a n c t io n e d

A r t ic le

V III ,

S e c t io n

m e r e ly ( t o ) c h e c k w h e t h e r o r n o t t h e g o v e r n m e n t a l b r a n c h o r a g e n c y h a s g o n e b e y o n d t h e c o n s t it u t io n a l l im it s o f it s ju r is d ic t io n , n o t t h a t it e r r e d o r h a s a d if f e r e n t v ie w . I n t h e a b s e n c e o f a s h o w in g ( o f ) g r a v e a b u s e o f d is c r e t io n a m o u n t in g t o la c k o f ju r is d ic t io n , C o u r t t o e x e r c is e it s c o r r e c t iv e p o w e r I t h a s n o p o w e r t o
[5 5 ]

t h e r e is n o o c c a s io n f o r t h e

lo o k in t o w h a t it t h in k s is a p p a r e n t e r r o r . A s to S e n a te th e p o w e r to c o n c u r w it h once th e

t r e a t ie s , t h e
[5 6 ]

c o n s t it u t io n th a t

lo d g e s t h e p o w e r, or

sam e

w it h

th e it s

a lo n e . T h u s , w it h in lik e th e

S e n a te

p e rfo rm s by an th e

e x e r c is e s

p r e r o g a t iv e c a n n o t , in

b o u n d a r ie s v ie w e d

p r e s c r ib e d to c o n s t it u t e

C o n s t it u t io n ,

th e

c o n c u rre n c e le s s gra v e

m a n n e r, b e

abuse

o f p o w e r, m u c h

a b u s e t h e r e o f . C o r o lla r ily , t h e S e n a t e , in t h e e x e r c i s e o f it s d is c r e t io n a n d a c t in g w it h in t h e lim it s o f s u c h p o w e r , m a y n o t b e s im ila r ly f a u lt e d f o r h a v in g s im p ly p e r f o r m e d a t a s k c o n f e r r e d a n d s a n c t io n e d b y n o le s s t h a n t h e f u n d a m e n t a l la w . For th e


[5 7 ]

r o le th e

of

th e

S e n a te an

in

r e l a t io n

to

t r e a t ie s

is

e s s e n t ia lly o f it s ow n

le g is la t iv e e r u d it e

in

c h a ra c te r;

S e n a te , a s

in d e p e n d e n t b o d y

possessed

m in d ,

h a s th e a c t io n

p r e r o g a t iv e th e

to

e it h e r a c c e p t o r r e je c t t h e o f it s w id e a c t. In t h is la t it u d e

p ro p o s e d

a g re e m e n t, a n d

w h a te v e r w is d o m

it t a k e s in th e

e x e r c is e o f th e

o f d is c r e t io n , p e r t a in s t o S e n a te
of

th e

ra th e r th a n d e lic a t e ,
b a la n c e s

le g a lit y in

s e n s e , th e

p a rta k e s
pow ers

p r in c ip a l, y e t o f chec ks
an d

r o le a liv e

k e e p in g

th e

p r in c ip le s

o f s e p a r a tio n

and

a n d v ig ila n t ly e n s u r e s t h a t t h e s e c h e r is h e d r u d im e n t s r e m a in t r u e t o t h e ir

fo rm

in a d e m o c r a t ic g o v e r n m e n t s u c h a s o u r s . T h e C o n s t it u t io n t h u s a n im a t e s , t h r o u g h p o w e r o f th e S e n a te , a h e a lt h y s y s t e m of checks and b a la n c e s

t h is t r e a t y - c o n c u r r in g

in d is p e n s a b le t o w a r d o u r n a t io n s p u r s u it o f p o lit ic a l m a t u r it y a n d g r o w t h . T r u e e n o u g h , r u d im e n t a r y is t h e p r in c ip le t h a t m a t t e r s p e r t a in in g t o t h e w is d o m b e y o n d t h e a m b it a n d p r o v in c e o f t h e c o u r t s t o in q u ir e . In f in e , absent any c le a r s h o w in g of g ra v e abus e of d is c r e t io n on th e p a rt of o f a l e g is la t iv e a c t a r e

r e s p o n d e n t s , t h is C o u r t - a s t h e f in a l a r b it e r o f le g a l c o n t r o v e r s ie s a n d s t a u n c h s e n t in e l o f t h e r ig h t s o f t h e p e o p le - is t h e n w it h such a f f a ir s p u r e ly e x e c u t iv e w it h o u t p o w e r t o c o n d u c t a n and le g is la t iv e in c h a ra c te r in c u r s io n and a n d m e d d le th e

n a tu re . F o r

C o n s t it u t io n n o le s s , m a p s o u t t h e d is t in c t b o u n d a r ie s a n d lim it s t h e m e t e s a n d b o u n d s w it h in w h ic h e ach of th e th re e p o lit ic a l b ra n c h e s of g o v e rn m e n t m ay e x e r c is e th e

p o w e r s e x c lu s iv e ly a n d e s s e n t ia lly c o n f e r r e d t o it b y la w . W H E R E F O R E , in lig h t o f t h e f o r e g o in g d is q u is it io n s , t h e in s t a n t p e t it io n s a r e h e r e b y D IS M IS S E D . S O O R D E R E D . J r., C . J ., B e llo s i llo , K apuna n, Q u is u m b in g , P u r is im a , P a rd o , G onzaga -

D a v id e ,

R e y e s , Y n a r e s - S a n t ia g o , a n d D e L e o n , J r ., J J . , c o n c u r . M e lo , a n d V it u g , J J ., jo in t h e d is s e n t o f J . P u n o . P u n o , J . , s e e d is s e n t in g o p in io n . M e n d o z a , J ., in t h e r e s u lt . P a n g a n ib a n , J . , n o p a r t d u e t o c lo s e p e r s o n a l a n d f o r m e r p r o f e s s io n a l r e la t io n s w it h a p e t it io n e r , S e n . J . R . S a lo n g a .

[1 ]

A rtic le

V . A ny to th e

such

arm ed

a tta c k

and th e

a ll m e a s u r e s N a tio n s . to

ta k e n S uch

as

r e s u lt

th e re o f s h a ll b e

s h a ll b e

im m e d ia te ly w hen peace th e and

re p o rte d S e c u r ity s e c u r ity .


[2 ]

S e c u r ity C o u n c il o f has ta k e n th e

U n it e d

m easures and

te r m in a te d

C o u n c il

m eas ure

neces sary

re s to re

m a in ta i n

in te r n a tio n a l

J o in t R e p o r t o f th e S e n a te C o m m itte e o n F o r e ig n R e la tio n a n d th e C o m m itte e o n N a tio n a l D e fe n s e a n d

S e c u r ity o n th e V is itin g F o r c e s A g r e e m e n t.
[3 ]

J o i n t C o m m i t t e e R e p o r t. P e titio n , G .R . N o . 1 3 8 6 9 8 , A n n e x B , R o llo , p p . 6 1 - 6 2 .

[4 ]

IN S T R U M E N T O F R A T IF IC A T IO N TO A LL TO W H O M T H E S E P R E S E N T S S H A L L C O M E , G R E E T IN G S :

K N O W th e

Y E , th a t w h e r e a s , th e A g r e e m e n t b e tw e e n th e g o v e r n m e n t o f th e R e p u b lic o f th e P h ilip p in e s a n d U n ite d S t a t e s o f A m e ric a R e g a r d in g th e T re a tm e n t o f th e U n ite d S ta te s A rm e d

G o v e rn m e n t o f th e

F orces 1998;

V is itin g

th e

P h ilip p in e s ,

h e r e in a fte r

re ferre d

to

as

V FA ,

w as

s ig n e d

in

M a n ila

on

10

F ebruary

W H E R E A S , th e

V FA

is e s s e n tia lly a

fra m e w o rk to

p ro m o te

b ila te r a l d e fe n s e

c o o p e r a tio n

b e tw e e n

th e

R e p u b lic o f th e P h ilip p in e s a n d th e U n ite d S ta te s o f A m e r ic a a n d to M u tu a l D e fe n s e r e g u la r T re a ty (R P -U S e x e r c is e s M D T ). T o are fu lfill th e

g iv e s u b s ta n c e to th e 1 9 5 1 R P - U S R P -U S of th e M D T , it is n e c e s s a r y th a t P h ilip p in e s and th e U n ite d

o b je c tiv e s o f th e th e R e p u b lic

j o i n t m i li t a r y

c o n d u c te d

b e tw e e n

S ta te s o f A m e r ic a ; W H E R E A S , th e V F A s e e k s to p r o v id e a c o n d u c iv e s e ttin g fo r th e s u c c e s s fu l c o n d u c t o f c o m b in e d m ilita r y e x e r c is e s b e tw e e n R P -U S M D T ; W H E R E A S , in p a r t ic u la r, th e V FA p r o v id e s th e m e c h a n is m fo r r e g u la tin g th e c ir c u m s t a n c e s an d th e P h ilip p in e s a n d th e U n ite d S ta te s a rm e d fo rc e s to ensure in te r o p e r a b ility o f th e

c o n d itio n s u n d e r w h ic h U S a s th e fo llo w in g in te r a lia :

a r m e d fo r c e s a n d d e fe n s e p e r s o n n e l m a y b e p r e s e n t in th e P h ilip p in e s s u c h

( a ) s p e c ific r e q u ir e m e n ts to fa c ilita te th e a d m is s io n

o f U n ite d S ta te s p e r s o n n e l a n d th e ir d e p a r tu r e fr o m

th e P h ilip p in e s in c o n n e c tio n w ith a c tiv itie s c o v e r e d b y th e a g r e e m e n t; ( b ) c le a r g u id e lin e s o n th e p r o s e c u tio n o f o ffe n s e s c o m m itte d b y a n y m e m b e r o f th e U n ite d S ta te s a r m e d f o r c e s w h i l e i n t h e P h i li p p i n e s ; ( c ) p r e c is e d ir e c tiv e on th e im p o r ta tio n and e x p o r ta tio n of U n ite d S ta te s G overnm e nt e q u ip m e n t,

m a te r ia ls , s u p p lie s a n d o th e r p r o p e r ty im p o r te d in to o r a c q u ir e d in th e P h ilip p in e s b y o r o n b e h a lf o f th e U n ite d S ta te s a r m e d fo r c e s in c o n n e c tio n w ith a c tiv itie s c o v e r e d b y th e A g r e e m e n t; a n d ( d ) e x p l i c i t r e g u l a t i o n s o n t h e e n t r y o f U n it e d S t a t e s v e s s e l s , a i r c r a f t , a n d v e h i c l e s ; W H E R E A S , A r tic le IX P a r tie s h a v e o f th e A g r e e m e n t p r o v id e s th a t it s h a ll e n te r in to fo r c e o th e r in on th e d a te o n w h ic h th e

n o tifie d e a c h

w r itin g , th r o u g h d ip lo m a tic c h a n n e ls , th a t th e y h a v e

c o m p le te d th e ir

c o n s t i t u t i o n a l r e q u i r e m e n t s f o r it s e n t r y i n t o f o r c e . I t s h a l l r e m a i n i n f o r c e u n t i l t h e e x p i r a t i o n o f 1 8 0 d a y s fro m t h e d a t e o n w h i c h e i t h e r P a r t y g i v e s t h e o t h e r P a r t y w r it t e n n o t i c e t o t e r m i n a t e t h e A g r e e m e n t . E S T R A D A , P r e s id e n t o f th e R e p u b lic o f th e th e G o v e rn m e n t

N O W , T H E R E F O R E , b e it k n o w n th a t I, J O S E P H E J E R C IT O P h ilip p in e s , a fte r h a v in g seen and

c o n s id e r e d th e a fo r e m e n tio n e d A g r e e m e n t b e tw e e n

o f th e U n ite d S ta te s o f A m e r ic a R e g a r d in g th e T r e a tm e n t o f th e U n ite d S ta te s A r m e d F o r c e s V is itin g th e P h ilip p in e s , d o h e r e b y r a tify a n d c o n fir m IN T E S T IM O N Y W H E R E O F, I have th e s a m e a n d e a c h a n d e v e r y A r tic le a n d C la u s e th e r e o f. set m y hand an d cau sed th e s e a l o f th e R e p u b lic o f th e

h e re u n to

P h ilip p in e s to b e a ffix e d . G IV E N u n d e r m y h a n d a t th e C ity o f M a n ila , th is 5 th d a y o f O c to b e r , in th e y e a r o f O u r L o r d o n e th o u s a n d n in e h u n d r e d a n d n in e ty - e ig h t.


[5 ]

P e titio n , G .R . N o . 1 3 8 5 8 7 , A n n e x C , R o llo , p . 5 9 .

T h e H o n o r a b le S e n a te P r e s id e n t a n d M e m b e r o f th e S e n a te S e n a te o f th e P h ilip p in e s P a s a y C ity G e n tle m e n a n d L a d ie s o f th e S e n a te : I h a v e th e h o n o r to tr a n s m it h e r e w ith th e In s tr u m e n t o f R a tific a tio n d u ly s ig n e d b y H .E . P r e s id e n t J o s e p h E je r c ito E s tr a d a , h is m e s s a g e to th e S e n a te a n d a d r a ft S e n a te R e s o lu tio n o f C o n c u r r e n c e in c o n n e c tio n w i t h t h e r a t if i c a t i o n o f t h e A G R E E M E N T B E T W E E N P H IL IP P IN E S A N D TH E G O V E R N M E N T O F TH E TH E G O V E R N M E N T O F TH E S TA TE S O F R E P U B L IC O F TH E TH E

U N IT E D

A M E R IC A

R E G A R D IN G

T R E A T M E N T O F T H E U N IT E D S T A T E S A R M E D F O R C E S V IS IT IN G W ith b e s t w is h e s .

T H E P H IL IP P IN E S .

V e r y tr u ly y o u r s , R O N A LD O B . ZA M O R A

E x e c u tiv e S e c r e ta r y
[6 ]

P e titio n , G .R . N o . 1 3 8 6 9 8 , A n n e x C . B e t w e e n J a n u a r y 2 6 a n d M a r c h 1 1 , 1 9 9 9 , t h e t w o C o m m i tt e e s j o i n t l y h e l d s i x p u b l i c h e a r i n g s - t h r e e i n

[7 ]

M a n ila a n d o n e e a c h in G e n e r a l S a n to s , A n g e le s C ity a n d C e b u C ity .


[8 ]

P e t i t i o n , G . R . N o . 1 3 8 5 7 0 , A n n e x C , R o ll o , p p . 8 8 - 9 5 . V FA is e s s e n tia lly a fr a m e w o r k fo r p r o m o tin g b ila te r a l d e fe n s e th e com m on und er s e c u r ity in te r e s t o f th e tw o th e 195 1 R P -U S M u tu a l

W H E R E A S , th e c o u n tr ie s ; and

fo r

s tr e n g th e n in g

th e ir

p a r tn e r s h ip

D e fe n s e T re a ty ; x x x x x x x x x W H E R E A S , th e V F A d o e s n o t g iv e u n r e s tr ic te d a c c e s s o r u n h a m p e r e d m o v e m e n t to U S F o r c e s in th e

P h i l i p p i n e s ; i n f a c t , it r e c o g n i z e s t h e P h i l i p p i n e g o v e r n m e n t a s t h e s o l e a u t h o r i t y t o a p p r o v e t h e c o n d u c t of any v is it or a c tiv ity in th e c o u n try by U S F orces, hen ce th e V FA is not a d e r o g a tio n of P h ilip p in e

s o v e r e ig n ty ; W H E R E A S , th e V FA is n o t a b a s in g a r r a n g e m e n t; n e ith e r d o e s it p a v e w a y fo r th e r e s to r a tio n o f th e

A m e r ic a n b a s e s a n d fa c ilitie s in th e P h ilip p in e s , in c o n tr a v e n tio n o f th e p r o h ib itio n a g a in s t fo r e ig n b a s e s and perm anent th e s ta tio n in g of fo r e ig n tro o p s o n ly und er A r tic le v is its X V III, of U S S e c tio n 25 of th e 198 7 in C o n s titu tio n jo in t m ilita r y

becau se

a greem ent

e n v is io n s

te m p o ra ry

p ersonn el

enga ged

e x e r c is e s o r o th e r a c tiv itie s a s m a y b e a p p r o v e d b y th e P h ilip p in e G o v e r n m e n t; W H E R E A S , th e V F A g iv e s P h ilip p in e c o u r ts p r im a r y ju r is d ic tio n o v e r o ffe n s e s th a t m a y b e c o m m itte d b y U S p e r s o n n e l w i t h i n P h i l i p p i n e t e r r i t o r y , w it h t h e e x c e p t i o n o f t h o s e i n c u r r e d s o l e l y a g a i n s t t h e s e c u r i t y o r p r o p e r ty o f t h e U s o r s o le ly a g a in s t th e p e r s o n o r p r o p e r ty o f U S p e r fo r m a n c e o f o ffic ia l d u ty ; x x x x x x x x x W H E R E A S , by v ir tu e of A rt ic le II o f th e th e V FA , th e U n ite d S ta te s c o m m its to respect th e la w s 8 of th e p e r s o n n e l, a n d th o s e c o m m itte d in th e

R e p u b lic o f th e p o lic y o f fr e e d o m

P h ilip p in e s , in c lu d in g

C o n s titu tio n , w h ic h

d e c la r e s in

A r tic le

II , S e c t i o n

th e re o f, a

fr o m n u c le a r w e a p o n s c o n s is te n t w ith th e n a tio n a l in te r e s t; s h a ll s e r v e a s th e le g a l m e c h a n is m p re p a re d n e s s o f th e A rm ed to p r o m o te d e fe n s e c o o p e r a tio n b e t w e e n tw o P h ilip p in e s a g a in s t e x te r n a l th r e a ts ;

W H E R E A S , th e V F A c o u n tr ie s - e n h a n c in g

th e

F o rc e s o f th e

a n d e n a b lin g th e P h ilip p in e s to b o ls te r th e s ta b ility o f th e P a c ific a r e a in a s h a r e d e ffo r t w ith its n e ig h b o r s ta te s ; W H E R E A S , th e V F A w il l e n h a n c e o u r p o l i t i c a l , e c o n o m i c a n d s e c u r i t y p a r t n e r s h i p a n d c o o p e r a t i o n w i t h p ro m o te th e d e v e lo p m e n t o f o u r c o u n tr y a n d im p r o v e d th e liv e s o f

th e U n ite d S ta te s - w h ic h h a s h e lp e d o u r p e o p le ; W H E R E A S , in th is C ham ber, accordance a fte r w ith th e

pow ers and p u b lic

fu n c tio n s o f S e n a te and

a s m a n d a te d co ncurs

b y th e in th e

C o n s titu tio n , P r e s id e n ts

h o ld in g

several

h e a r in g s

d e lib e r a tio n s ,

r a t i fi c a t i o n o f t h e V F A , f o r t h e f o l l o w i n g r e a s o n s : (1) T he A greem ent th e w ill p r o v id e th e le g a l m e c h a n is m th e to p ro m o te d e fe n s e c o o p e r a t io n b e tw e e n th e

P h ilip p in e s a n d a rm e d fo rc e s ; (2) T he

U .S . a n d

th u s e n h a n c e

ta c tic a l, s tr a te g ic , a n d

te c h n o lo g ic a l c a p a b ilitie s o f o u r

A greem ent

w i ll g o v e r n

th e

tr e a t m e n t

of

U . S . , m il i t a r y a n d

d e fe n s e

p e r s o n n e l w ith in

P h ilip p in e

t e r r it o r y , w h i l e t h e y a r e e n g a g e d i n

a c tiv itie s c o v e r e d

b y th e M u tu a l D e fe n s e T re a ty a n d

c o n d u c te d w ith

th e p r io r a p p r o v a l o f th e P h ilip p in e g o v e r n m e n t; a n d

(3) T he

A g r e e m e n t w ill p r o v id e

th e

r e g u la to r y m e c h a n is m

fo r th e

c ir c u m s ta n c e s

and

c o n d itio n s u n d e r

w h i c h U . S . m i li t a r y f o r c e s m a y v i s i t t h e P h i li p p i n e s ; x x x x x x x x x x x x W H E R E A S , in accordance w ith A r tic le IX o f th e V F A , th e P h ilip p in e g o v e rn m e n t r e s e rv e s th e r ig h t to

te r m in a te th e a g r e e m e n t u n ila te r a lly o n c e it n o lo n g e r r e d o u n d s to o u r n a tio n a l in te r e s t: N o w , th e r e fo r e , b e it R e s o lv e d , th a t th e S e n a te c o n c u r , a s it h e r e b y c o n c u r s , in th e R a tific a tio n o f th e A g r e e m e n t b e tw e e n th e G o v e r n m e n t o f th e R e p u b lic o f th e P h ilip p in e s a n d th e U n ite d S ta te s o f A m e r ic a R e g a r d in g th e T r e a tm e n t o f U n i t e d S t a t e s A r m e d F o r c e s v i s i t i n g t h e P h i li p p i n e s . x x x


[9 ]

The

fo llo w in g

v o te d

fo r

con currence:

(1)

S e n a te

P r e s id e n t

M a r c e lo

F ern an,

(2)

S e n a te

P r e s id e n t P r o F r a n c is c o

T e m p o r e B la s O p le , ( 3 ) S e n a to r F r a n k lin

D r ilo n , ( 4 ) S e n a to r R o d o lfo

B ia z o n , ( 5 ) S e n a to r

T a ta d , (6 ) S e n a to r R e n a to

C a y e ta n o , (7 ) S e n a to r T e re s a

A q u in o - O r e ta , ( 8 ) S e n a to r R o b e r t

B a r b e r s , ( 9 ) S e n a to r R o b e r t J a w o r s k i, ( 1 0 ) S e n a to r R a m o n M a g s a y s a y , J r ., ( 1 1 ) S e n a to r J o h n O s m e a , ( 1 2 ) S e n a t o r J u a n F la v ie r , ( 1 3 ) S e n a t o r M irr ia m D e fe n s o r - S a n tia g o , ( 1 4 ) S e n a to r J u a n P o n c e - E n r ile , ( 1 5 )

S e n a to r V ic e n te S o tto III, ( 1 6 ) S e n a to r R a m o n R e v illa , ( 1 7 ) S e n a to r A n n a D o m in iq u e C o s e te n g , a n d ( 1 8 ) S e n a to r G r e g o r io H o n a s a n . O n ly th e fo llo w in g v o te d to r e je c t th e r a tific a tio n O sm ena of th e V FA : (1) S e n a to r T e o fis to G u in g o n a , J r., (2)

S e n a to r R a u l R o c o , ( 3 ) S e n a to r S e r g io L o r e n L e g a r d a - L e v is te .
[1 0 ]

I I I , ( 4 ) S e n a t o r A q u i li n o

P im e n te l, J r ., a n d

(5 ) S e n a to r

S e e P e titio n , G .R . N o . 1 3 8 5 7 0 , R o llo , p p . 1 0 5 . M in u te R e s o lu tio n d a te d J u n e 8 , 1 9 9 9 . S e e C o n s o lid a te d C o m m e n t. R e p ly to C o n s o lid a te d C o m m e n t, G .R . N o . 1 3 8 6 9 8 ; G .R . N o . 1 3 8 5 8 7 . V a lm o n te v s . P h ilip p in e C h a r ity S w e e p s ta k e s O ffic e , (R e s .) G .R . N o . 78716, S e p te m b e r 22, 1987,

[1 1 ]

[1 2 ]

[1 3 ]

[1 4 ]

c ite d in T e le c o m m u n ic a tio n s a n d B r o a d c a s t A tto r n e y s o f th e P h ilip p in e s , In c . v s . C O M E L E C , 2 8 9 S C R A 337, 343 [1 9 9 8 ]; C o n s t. V a lle y F orge C o lle g e v s . Laron, A m e r ic a n s 176 S C R A U n ite d , 240, 45 4 U S 464, 7 0 L. E d. 2d 7 00 [1 9 8 2 ]; Jr. 243

B ugna y

A nd

D e v.

C orp. vs.

25 1 -252

[1 9 8 9 ];

T a ta d v s .

G a r c ia ,

S C R A 4 3 6 , 4 7 3 [1 9 9 5 ].
[1 5 ]

S e e A r t i c l e V I, S e c t i o n s 2 4 , 2 5 a n d 2 9 o f t h e 1 9 8 7 C o n s t i t u t i o n . P a s c u a l v s . S e c r e ta r y o f P u b lic W o r k s , 1 1 0 Lozada v s. C O M E LE C , 120 S C R A 33 7 P h il. 3 3 1 [1 9 8 3 ]; [1 9 6 0 ]; M a c e d a v s . M a c a r a ig , 1 9 7 D u m la o v s . C O M E LE C , 95 S C R A S C R A 3 92 77 1

[1 6 ]

[1 9 9 1 ];

[1 9 8 0 ];

G o n z a le s v s . M a r c o s , 6 5 S C R A 6 2 4 [1 9 7 5 ].
[1 7 ]

1 7 6 S C R A 2 4 0 , 2 5 1 -2 5 2 [1 9 8 9 ]. 2 3 5 S C R A 5 0 6 [1 9 9 4 ]. C o n s o lid a te d M e m o r a n d u m , p . 1 1 . A r a n e ta v s . D in g la s a n , 8 4 P h il. 3 6 8 [1 9 4 9 ]; Ilo ilo P a la y & C o r n P la n te r s A s s o c ia tio n v s . F e lic ia n o , 1 2 1

[1 8 ]

[1 9 ]

[2 0 ]

P h i l . 3 5 8 [ 1 9 6 5 ] ; P h i l i p p i n e C o n s t i t u ti o n A s s o c i a t i o n v s . G i m e n e z , 1 2 2 P h i l . 8 9 4 [ 1 9 6 5 ] .
[2 1 ]

2 1 S C R A 7 7 4 [1 9 6 7 ]. 1 8 0 S C R A 4 9 6 , 5 0 2 [1 9 8 8 ] c ite d in K ilo s b a y a n , In c . v s . G u in g o n a , J r ., 2 3 2 S C R A 1 1 0 [1 9 9 4 ]. 1 9 7 S C R A 5 2 , 6 0 [1 9 9 1 ]. 2 3 2 S C R A 1 1 0 [1 9 9 4 ]. J . S a n t o s v s . N o r t h w e s t O r ie n t A irlin e s , 2 1 0 S C R A 2 5 6 , 2 6 1 [ 1 9 9 2 ] .

[2 2 ]

[2 3 ]

[2 4 ]

[2 5 ]

[2 6 ]

M a n i l a R a i l r o a d C o . v s . C o ll e c t o r o f C u s t o m s , 5 2 P h i l . 9 5 0 . 1 5 7 S C R A 2 8 2 [1 9 8 8 ] c ite d in R e p u b lic v s . S a n d ig a n b a y a n , 1 7 3 S C R A 7 2 , 8 5 [1 9 8 9 ]. C a s tillo - c o v . B a r b e r s , 2 9 0 S C R A 7 1 7 , 7 2 3 ( 1 9 9 8 ) . R e c o r d s o f th e C o n s titu tio n a l C o m m is s io n , S e p te m b e r 1 8 , 1 9 8 6 D e lib e r a tio n , p . 7 8 2 . 1 9 8 7 C o n s t i t u t i o n , A r t i c l e V I, S e c t i o n 2 . - t h e S e n a t e s h a l l b e c o m p o s e d o f t w e n t y - f o u r S e n a t o r s w h o

[2 7 ]

[2 8 ]

[2 9 ]

[3 0 ]

s h a ll b e e le c te d a t la r g e b y th e q u a lifie d v o te r s o f th e P h ilip p in e s , a s m a y b e p r o v id e d b y la w .
[3 1 ]

The

2 4 th

m e m b e r ( G lo r ia

M a c a p a g a l-A rro y o ) o f th e

S e n a te

w hose

te rm

w a s to

e x p ir e

in

2001

w a s

e le c te d V ic e - P r e s id e n t in th e 1 9 9 8 n a tio n a l e le c tio n s .
[3 2 ]

B a lle n tin e s L e g a l D ic tio n a r y , 1 9 9 5 . A r tic le 2, S e c tio n 2, paragraph s h a ll h a v e 2 of th e U n ite d S ta te s w ith th e C o n s titu tio n , a d v ic e and s p e a k in g of th e U n ite d to S ta te s m ake

[3 3 ]

P r e s id e n t p r o v id e s : H e

pow er, by and

c o n s e n t o f th e

S e n a te

tr e a tie s , p r o v id e d tw o - th ir d s o f th e s e n a to r s p r e s e n t c o n c u r .
[3 4 ]

J .M . T u a s o n & C o ., In c . v s . L a n d T e n u r e A s s o c ia tio n , 3 1 S C R A 4 1 3 [1 9 7 0 ]. A ltm a n C o. vs. U n it e d S ta te s , 224 U S 263 [1 9 4 2 ], c ite d in C o q u ia and D e fe n s o r - S a n tia g o ,

[3 5 ]

In te r n a tio n a l L a w , 1 9 9 8 E d . P . 4 9 7 .
[3 6 ]

V ie n n a C o n v e n tio n , A r tic le 2 . G e r h a r d v o n G la h n , L a w a m o n g N a tio n s , a n In tr o d u c tio n to P u b lic In te r n a tio n a l L a w , 4 th E d ., p . 4 8 0 . H a c k w o r th , D ig e s t o f In te r n a tio n a l L a w , V o l. 5 , p . 3 9 5 , c ite d in U S A FE V e te r a n s A s s o c ia tio n In c . v s .

[3 7 ]

[3 8 ]

T r e a s u r e r o f th e P h ilip p in e s , 1 0 5 P h il. 1 0 3 0 , 1 0 3 7 [1 9 5 9 ].
[3 9 ]

R ic h a r d

J.

E r ic k s o n ,

T he

M a k in g

of

E x e c u tiv e

A g re e m e n ts

by

th e

U n ite d

S ta te s

D e p a rtm e n t

of

D e fe n s e : A n a g e n d a fo r P r o g r e s s , 1 3 B o s to n U . In tl. L .J . 5 8 [1 9 9 5 ], c itin g R e s ta te m e n t [th ir d ] o f F o r e ig n R e la tio n s L a w p t . I I I, i n t r o d u c t o r y n o t e [1 9 8 7 ] a n d P a u l R e u te r , In tr o d u c tio n to th e Law o f T r e a tie s 2 2

[J o s e M ic o & P e te r H a g g e m a c h e r tr a n s ., 1 9 8 9 ] c ite d in C o n s o lid a te d M e m o r a n d u m , p . 3 2 .


[4 0 ]

3 S C R A 3 5 1 , 3 5 6 -3 5 7 [1 9 6 1 ]. 4 R e c o r d o f th e C o n s titu tio n a l C o m m is s io n 7 8 2 [S e s s io n o f S e p te m b e r 1 8 , 1 9 8 6 ]. L e t t e r o f A m b a s s a d o r H u b b a r d t o S e n a t o r M iria m D e fe n s o r - S a n tia g o :

[4 1 ]

[4 2 ]

D e a r S e n a to r S a n tia g o : I am happy to respon d to your le tte r of A p r il 2 9 , c o n c e r n in g th e w ay th e U S G overnm e nt v ie w s th e

P h ilip p in e - U S V is itin g F o r c e s A g r e e m e n t in U S le g a l te r m s . Y o u r a is e a n im p o r ta n t q u e s tio n a n d I b e lie v e th is r e s p o n s e w ill h e lp in th e S e n a te d e lib e r a tio n s . A s a m a tte r of b o th U S and in te r n a tio n a l la w , an in te r n a tio n a l agreem ent li k e th e V is itin g F orces

A g r e e m e n t is le g a lly b in d in g o n th e U S G o v e r n m e n t, In in te r n a tio n a l le g a l te r m s , s u c h a n a g r e e m e n t is a tr e a ty . H o w e v e r , as a m a tte r of U S d o m e s tic la w , an agreem ent li k e th e V FA is an e x e c u tiv e

a g r e e m e n t , b e c a u s e i t d o e s n o t r e q u i r e t h e a d v i c e a n d c o n s e n t o f t h e s e n a t e u n d e r A r t i c l e I I, s e c t i o n 2 o f o u r C o n s titu tio n . T h e P r e s id e n ts p o w e r to c o n c lu d e th e V F A w ith th e o th e r I I, c o u n tr ie s , S ec. 1) and d e r iv e s and h is fro m w ith th e P h ilip p in e s , a n d o th e r s ta tu s o f fo rc e s a g re e m e n ts fo r th e in con duct of of th e fo r e ig n A rm ed

th e

P r e s id e n ts pow ers

r e s p o n s ib ilitie s a s

r e la t io n s ( A rt . F o rc e s . S e n a te

c o n s titu tio n a l

C om m an der th e V FA

C h ie f and

a d v ic e

c o n s e n t is n o t n e e d e d , in te r a lia , b e c a u s e

s im ila r a g r e e m e n ts

n e ith e r c h a n g e U S o n ly about fiv e

d o m e s t ic n o r r e q u ir e c o n g r e s s io n a l a p p r o p r ia t io n o f f u n d s . I t is im p o rt a n t t o n o t e t h a t of th e in te r n a tio n a l agreem ent entered in to by th e U S G o v e rn m e n ts r e q u ir e

percent

S e n a te a d v ic e a n d c o n s e n t. H o w e v e r , in te r m s o f th e U S of th e V FA , th e re is no d iffe r e n c e b e tw e e n a tre a ty

G o v e r n m e n ts o b lig a tio n to a d h e r e to th e te r m s in by our S e n a te a nd an e x e c u tiv e

c oncurred

a g r e e m e n t. B a c k g r o u n d in fo r m a tio n o n th e s e p o in ts c a n b e fo u n d in th e R e s ta te m e n t 3 r d o f th e F o r e ig n R e la tio n s L a w o f th e U n ite d S ta te s , S e c . 3 0 1 , e t s e q . [1 9 8 6 ]. I hope you fin d th is answ er you h e lp fu l. A s th a t th e th e P r e s id e n ts S ta te s r e p r e s e n ta tiv e to th e G overnm ent to liv in g up of to th e th e

P h ilip p in e s , I c a n te rm s o f th e V F A . S in c e r e ly y o u r s ,

assure

U n ite d

G o v e r n m e n t is fu lly c o m m itte d

TH O M A S C . H U B B A R D A m bassa dor
[4 3 ]

G e r h a r d v o n G l a h n , L a w A m o n g N a t i o n s , A n I n t r o d u c t i o n t o P u b l i c I n t e r n a ti o n a l L a w , 4 t h E d . , p . 4 8 6 . A r tic le 1 4 o f th e V ie n n a C o n v e n tio n , c ite d in C o q u ia a n d D e fe n s o r - S a n tia g o , In te n a tio n a l L a w , 1 9 9 8

[4 4 ]

E d ., p p . 5 0 6 -5 0 7 .
[4 5 ]

C r u z , I s a g a n i, I n t e r n a t io n a l L a w , 1 9 8 5 E d . , p . 1 7 5 . S ec. 2. The P h ilip p in e s renounce s w ar as an in s tr u m e n t of n a tio n a l p o lic y , a d o p ts th e g e n e r a lly

[4 6 ]

a c c e p te d p r in c ip le s o f in te r n a tio n a l la w

a s p a r t o f th e la w

o f th e la n d a n d a d h e r e s to th e p o lic y o f p e a c e ,

e q u a l i t y , j u s t i c e , fr e e d o m , c o o p e r a t i o n , a n d a m i t y w i t h a l l n a t i o n s .
[4 7 ]

L o u is H e n k in , R ic h a r d C . P u g h , O s c a r S c h a c h te r , H a n s S m it, In te r n a tio n a l L a w , C a s e s a n d M a te r ia ls ,

2 n d E d A m e r ic a n C a s e b o o k S e r ie s , p . 1 3 6 .
[4 8 ]

G e r h a r d v o n G la h , s u p r a , p . 4 8 7 . H a r r is , p . 6 3 4 c ite d in C o q u ia , In te r n a tio n a l L a w , s u p r a , p . 5 1 2 . C u is o n v s . C A , 2 8 9 S C R A 159 [1 9 9 8 ]. S e e a ls o J a r d in e v s . N L R C , G .R . N o . 1 1 9 2 6 8 , F e b 23, 200 0

[4 9 ]

[5 0 ]

c itin g A r r o y o v s . D e V e n e c ia , 2 7 7 S C R A 2 6 8 [1 9 9 7 ].
[5 1 ]

C o r t e s , T h e P h i li p p i n e P r e s i d e n c y a s t u d y o f E x e c u t i v e P o w e r , 2 n d E d . , p . 1 9 5 . C r u z , P h i l . P o l i ti c a l L a w , 1 9 9 5 E d . , p . 2 2 3 . U n i t e d S t a t e s v s . C u r ti s W r i g h t C o r p . , 2 9 9 U . S . 3 0 4 ( 1 9 3 4 ) , p e r J u s t i c e S u t h e r l a n d . A r r o y o v s . D e V e n e c ia , 2 7 7 S C R A 2 6 9 [1 9 9 7 ]. C o v s . E le c to r a l T r ib u n a l o f th e H o use o f R e p r e s e n ta tiv e s , 1 9 9 S C R A 692, 7 01 ( 1 9 9 1 ) ; L la m a s v s .

[5 2 ]

[5 3 ]

[5 4 ]

[5 5 ]

O r b o s , 2 0 2 S C R A 8 4 9 , 8 5 7 ( 1 9 9 1 ) ; L a n s a n g v s . G a r c ia , 4 2 S C R A a t 4 8 0 - 4 8 1 [1 9 7 1 ].
[5 6 ]

1 9 8 7 C o n s titu tio n , A r tic le V I, S e c tio n 1 . - T h e le g is la tiv e p o w e r s h a ll b e v e s te d in th e C o n g r e s s o f th e w h ic h s h a ll c o n s is t of a S e n a te a nd a H ouse of R e p r e s e n ta tiv e s , exc ept to th e e x te n t

P h ilip p in e s

r e s e r v e d to th e p e o p le b y th e p r o v is io n o n in itia tiv e a n d r e fe r e n d u m .
[5 7 ]

S e e A k e h u r s t, M ic h a e l: M o d e r n In tr o d u c tio n to In te r n a tio n a l L a w , ( L o n d o n : G e o r g e A lle n a n d U n w in )

5 t h e d . , p . 4 5 ; U n it e d S t a t e s v s . C u r t i s s - W r i g h t E x p o r t C o r p . , 2 9 9 U . S . 3 0 4 , 3 1 9 ( 1 9 3 6 ) .

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