Tantuico v Domingo | CM

G.R. No. 96422 February 28, 1994

FRANCISCO S. TANTUICO, JR., petitioner,
vs.
HON. EUFEMIO DOMINGO, in his capacity as Chairman of the Commission on Audit, ESTELITO SALVADOR,
MARGARITO SILOT, VALENTINA EUSTAQUIO, ANICIA CHICO and GERMINIA PASCO,respondents.
QUIASON, J.:
Summary: Tantuico was Chairman of COA. He sought clearance in 1985 which was granted. He applied for another
clearance in 1986 after his retirement but this was not signed by the new Chairman Guingona. The next Chairman
Domingo required a committee to audit transactions during Tantuicos term. but indorsed Tantuicos retirement to
GSIS. Domingo informed Tantuico of the approval of his retirement but withheld half of the benefits which will be
subjected to the results of the final audit. SC held that Domingo cannot withhold the benefits due petitioner under the
retirement laws.
Doctrine: Well-settled is the rule that retirement laws are liberally interpreted in favor of the retiree because the
intention is to provide for the retiree's sustenance and comfort, when he is no longer capable of earning his livelihood.
Nature: R65

January 26, 1980, Tantuico was appointed Chairman of COA (term of 7 years expiring January 26, 1987).

December 31, 1985, he applied for clearance from all money, property and other accountabilities for
retirement

He obtained the clearance for 1976 to December 31, 1985. The clearance had all the required signatures
and bore a certification that petitioner was "cleared from money, property and/or other accountabilities by
this Commission"

1986, after the EDSA Revolution, Tantuico submitted his courtesy resignation to President Corazon C.
Aquino. The newly appointed Chairman was, now Executive Secretary Teofisto Guingona, Jr.

Tantuico sought a second clearance for January 1, 1986 to March 9, 1986. The second clearance
embodies a certificate that petitioner was "cleared from money, property and/or accountability by this
Commission." It had all the signatures except that of Chairman Guingona.

Chairman Guingona was replaced by respondent Chairman Domingo.

A year later, Domingo issued COA Office Order No. 87-10182 which created a committee to inventory all
equipment acquired during the tenure of his two predecessors.

1987, Domingo indorsed Tantuico's retirement application to GSIS, certifying that petitioner was
cleared of money and property accountability. The application was returned to the COA for final approval
pursuant to R.A. No. 1568

The inventory committee recommended clearance as there was no showing that he personally gained from
the missing property or was primarily liable for the loss

Not satisfied, Domingo issued a Memorandum directing the inventory committee to explain the failure to
complete a physical inventory and verification of all equipment; for exceeding their authority in
recommending clearances. The members of the committee were administratively charged.

1988, Domingo created a special audit team COA transactions and accounts during the tenure of Tantuico

1989 report: there were deficiencies which adversely affected the financial condition and operation of the
COA, such as violations of Eos PDs and RRs; and that there were some constraints in the audit, such as the
unavailability of records and documents.

Domingo found members of the first inventory committee guilty as charged and issued them a reprimand.

1989 letter:

Domingo informed Tantuico of the approval of his application for retirement under R.A. No. 1568,
effective as of March 9, 1986 and added:
o

. . . In view, however, of the audit findings and inventory report adverted to above, payment of only
one-half () of the money value of the benefits due you by reason of such retirement will be
allowed, subject to the availability of funds and the usual accounting and auditing rules. Payment
of the balance of said retirement benefits shall be subject to the final results of the audit concerning
your fiscal responsibility and/or accountability as former Chairman of this Commission.

Tantuico requested full payment of his retirement benefits.

He was furnished a copy of the report of the special audit team Petitioner submitted a letter-complaint,
wherein he cited certain defects in the manner the audit was conducted.

He requested a copy of the working papers on which the audit report was based. This was denied by
respondent Chairman, who claimed that under the State Audit Manual, access to the working paper was
restricted

Domingo demanded an accounting of funds and a turn over of the assets of the Fiscal Administration
Foundation, Inc. within 30 days.

Tantuico: notwithstanding the two clearances and Domingos certification that Tantuico had been cleared of
money and property accountability, Domingo refuses to release the remaining half of his retirement
benefits a purely ministerial act.

ISSUE/ HELD: WON Tantuicos benefits were validly withheld (NO)

RATIO:

Tantuico was already issued an initial clearance during his tenure. He also applied for a second clearance
which was signed by all the officials, except the Chairman

Whatever infirmities or limitations existed in said clearances were cured after Domingo favorably indorsed
petitioner's application for retirement to GSIS

Regardless of petitioner's monetary liability to the government that may be discovered from the audit
concerning his fiscal responsibility as former COA Chairman, Domingo cannot withhold the benefits due
Tantuico under the retirement laws.

In Romana Cruz v. Hon. Francisco Tantuico(1988), the National Treasurer withheld the retirement
benefits of an employee because of his finding that she negligently allowed the anomalous encashment of
falsified treasury warrants.

In said case, where Tantuico was one of the respondents, we found that the employee had been cleared by
the National Treasurer from all money and property responsibility, and held that the retirement pay
accruing to a public officer may not be withheld and applied to his indebtedness to the government.

We cited Justice Laurel's essay on the rationale for the benign ruling in favor of the retired employees, thus:
o

. . . Pension in this case is a bounty flowing from the graciousness of the Government
intended to reward past services and, at the same time, to provide the pensioner with the means
with which to support himself and his family. Unless otherwise clearly provided, the pension should
inure wholly to the benefit of the pensioner. It is true that the withholding and application of the
amount involved was had under Section 624 of the Administrative Code and not by any judicial
process, but if the gratuity could not be attached or levied upon execution in view of the prohibition
of Section 3 of Act No. 4051, the appropriation thereof by administrative action, if allowed, would
lead to the same prohibited result and enable the respondent to do indirectly what they can not do
directly under Section 3 of the Act No. 4051. Act No. 4051 is a later statute having been approved
on February 21, 1933, whereas the Administrative Code of 1917 which embodies Section 624
relied upon by the respondents was approved on March 10 of that year. Considering Section 3 of
Act No. 4051 as an exception to the general authority granted in Section 624 of the Administrative
Code, antagonism between the two provisions is avoided (Hunt v. Hernandez, 64 Phil. 753 [1937]).

Under Section 4 of R.A. No. 1568 (An Act to Provide Life Pension to the Auditor General and the Chairman
or Any Member of the Commission of Elections), the benefits granted by said law to the Auditor General
and the Chairman and Members of the Commission on Elections shall not be subject to
garnishment, levy or execution.

Under Section 33 of P.D. No. 1146, as amended (The Revised Government Service Insurance Act of 1977),
the benefits granted thereunder "shall not be subject, among others, to attachment, garnishment,
levy or other processes."

Retirement laws are liberally interpreted in favor of the retiree because the intention is to provide for the
retiree's sustenance and comfort, when he is no longer capable of earning his livelihood

OTHER ISSUES:

Tantuico also wants us to enjoin the re-audit of his fiscal responsibility or accountability, invoking the
following grounds:
1. The re-audit involved settled and closed accounts which under Section 52 of the Audit Code can
no longer be re-opened and reviewed;

2. The re-audit was initiated by respondent Chairman alone, and not by the Commission as a
collegial body;
3. The report of the special audit team that recommended the re-audit is faulty as the team
members themselves admitted several constraints in conducting the re-audit, e.g. unavailability of
the documents, frequent turn-over and movement of personnel, etc.;
4. The re-audit covered transactions done even after petitioner's retirement;
5. He was not given prior notice of the re-audit;
6. He was not given access to the working papers; and
7. Respondents were barred by res judicata from proceeding with the re-audit (Rollo, pp. 19-40).

The petition must fail insofar as it seeks to abort the completion of the re-audit. While at the beginning he
raised objections, he subsequently cooperated with the examination of his accounts and transactions as a
COA official.

Tantuico should be given access to the working papers used by the special audit team

It has been seven years since petitioner's retirement. Since then he was only paid half of his retirement
benefits, with the other half being withheld despite the issuance of two clearances and the approval of his
retirement application. As of the filing of this petition on December 21, 1990, no criminal or administrative
charge had been filed against petitioner in connection with his position as former Acting Chairman and
Chairman of the COA.

DISPOSITION: petition is GRANTED insofar as it seeks to compel respondent Chairman of the COA to pay
petitioner's retirement benefits in full and his monthly pensions beginning in March 1991.
The petition is DENIED insofar as it seeks to nullify COA Office Order No. 88-10677 and the audit report but Tantuico
should be given full access to the working papers to enable him to prepare his comment.