Pimentel vs. Ermita (G.R. No. 164978)
Pimentel vs. Ermita (G.R. No. 164978)
Pimentel vs. Ermita (G.R. No. 164978)
DECISION
CORONA, J.:
Before us is a Petition for Prohibition under Rule 65 of the Rules of Court questioning
the constitutionality and legality of the permanent appointments, made by President
Gloria Macapagal-Arroyo, of public respondents to different positions in the Philippine
Coast Guard and their subsequent assumption of office without confirmation by the
Commission on Appointments under the 1987 Constitution.
The petition impleads Hon. Emilia T. Boncodin in her capacity as Secretary of the
Department of Budget and Management (DBM). Petitioner, Elpidio G. Soriano, filed the
instant petition as member of the Integrated Bar of the Philippines and as a taxpayer.
Public respondents were promoted to different ranks in the Philippine Coast Guard
(PCG) on different dates as follows:
Reuben S. Lista Vice Admiral, Philippine Coast Guard
Domingo T. Estera Rear Admiral, Philippine Coast Guard
Miguel C. Tabares Commodore, Philippine Coast Guard
Arthur N. Gosingan Commodore, Philippine Coast Guard
Efren L. Taduran Naval Captain, Philippine Coast Guard
Cesar A. Sarile Naval Captain, Philippine Coast Guard
Danilo M. Vilda Naval Captain, Philippine Coast Guard
Elpidio B. Padama Commodore, Philippine Coast Guard
Petitioner bewails the fact that despite the non-submission of their names to the
Commission on Appointments (CA) for confirmation, all of the said respondent officers of
the PCG had assumed their duties and functions. According to petitioner, their respective
appointments are illegal and unconstitutional for failure to undergo the confirmation
process in the CA. Thus, they should be prohibited from discharging their duties and
functions as such officers of the PCG.
In the same vein, petitioner opines that there is no legal basis for the DBM to allow
the disbursement of the salaries and emoluments of respondent officers of the
PCG. Accordingly, he prays that respondent Secretary Boncodin be ordered to desist
from allowing such disbursements until the confirmation of their respective appointments
by the CA.
At the outset, the Court finds petitioner to be without any legal personality to file the
instant petition. We have ruled that a private citizen is allowed to raise constitutional
questions only if he can show that he has personally suffered some actual or threatened
injury as a result of the allegedly illegal conduct of the government, the injury is fairly
traceable to the challenged action and the injury is likely to be redressed by a favorable
action.[1] In the case at bar, petitioner has failed to clearly demonstrate that he has
personally suffered actual or threatened injury. It should be emphasized that a party
bringing a suit challenging the constitutionality of an act or statute must show not only
that the law or act is invalid, but also that he has sustained or is in immediate, or imminent
danger of sustaining some direct injury as a result of its enforcement and not merely that
he suffers thereby in some indefinite way.[2]
The instant petition cannot even be classified as a taxpayers suit because petitioner
has no interest as such and this case does not involve the exercise by Congress of its
taxing power.
Assuming arguendo that petitioner has the legal personality to question the subject
appointments, the petition will nevertheless fail. As aptly pointed out by the Solicitor
General, the PCG used to be administered and maintained as a separate unit of the
Philippine Navy under Section 4 of RA 5173. It was subsequently placed under the direct
supervision and control of the Secretary of the Department of National Defense (DND)
pursuant to Section 4 of PD 601. Eventually, it was integrated into the Armed Forces of
the Philippines (AFP) as a major subordinate unit of the Philippine Navy under Section
EN BANC
- versus - Quisumbing,
Ynares-Santiago,
Sandoval-Gutierrez,
Carpio,
Austria-Martinez,
Corona,
Carpio Morales,
EXEC. SECRETARY EDUARDO Callejo, Sr.,
R. ERMITA, FLORENCIO B. ABAD, Azcuna,
AVELINO J. CRUZ, JR., Tinga,
MICHAEL T. DEFENSOR, Chico-Nazario, and
JOSEPH H. DURANO, Garcia, JJ.
RAUL M. GONZALEZ,
ALBERTO G. ROMULO,
RENE C. VILLA, and Promulgated:
ARTHUR C. YAP,
Respondents. October 13, 2005
x-----------------------------------------------------x
DECISION
CARPIO, J.:
The Case
This is a petition for certiorari and prohibition[1] with a prayer for the
issuance of a writ of preliminary injunction to declare unconstitutional the
appointments issued by President Gloria Macapagal-Arroyo (President Arroyo)
through Executive Secretary Eduardo R. Ermita (Secretary Ermita) to Florencio B.
Abad, Avelino J. Cruz, Jr., Michael T. Defensor, Joseph H. Durano, Raul M. Gonzalez,
Alberto G. Romulo, Rene C. Villa, and Arthur C. Yap (respondents) as acting
secretaries of their respective departments. The petition also seeks to prohibit
respondents from performing the duties of department secretaries.
Antecedent Facts
Sir:
Pursuant to the provisions of existing laws, you are hereby appointed ACTING
SECRETARY, DEPARTMENT OF (appropriate department) vice (name of person replaced).
By virtue hereof, you may qualify and enter upon the performance of the duties
and functions of the office, furnishing this Office and the Civil Service Commission with
copies of your Oath of Office.
(signed)
Gloria Arroyo
Respondents took their oath of office and assumed duties as acting secretaries.
Sir:
Pursuant to the provisions of existing laws, you are hereby appointed SECRETARY
[AD INTERIM], DEPARTMENT OF (appropriate department).
By virtue hereof, you may qualify and enter upon the performance of the duties
and functions of the office, furnishing this Office and the Civil Service Commission with
copies of your oath of office.
(signed)
Gloria Arroyo
Issue
The petition questions the constitutionality of President Arroyos appointment
of respondents as acting secretaries without the consent of the Commission on
Preliminary Matters
The Solicitor General argues that the petition is moot because President Arroyo had
extended to respondents ad interim appointments on 23 September 2004
As a rule, the writ of prohibition will not lie to enjoin acts already
The power to appoint is essentially executive in nature, and the legislature may not
interfere with the exercise of this executive power except in those instances when
the Constitution expressly allows it to interfere.[6] Limitations on the executive
power to appoint are construed strictly against the legislature.[7] The scope of the
legislatures interference in the executives power to appoint is limited to the power
to prescribe the qualifications to an appointive office. Congress cannot appoint a
person to an office in the guise of prescribing qualifications to that office. Neither
may Congress impose on the President the duty to appoint any particular person to
an office.[8]
However, even if the Commission on Appointments is composed of members of
Congress, the exercise of its powers is executive and not legislative. The
Commission on Appointments does not legislate when it exercises its power to give
or withhold consent to presidential appointments. Thus:
The Solicitor General states that the present petition is a quo warranto proceeding
because, with the exception of Secretary Ermita, petitioners effectively seek to oust
respondents for unlawfully exercising the powers of department secretaries. The
Solicitor General further states that petitioners may not claim standing as Senators
because no power of the Commission on Appointments has been infringed upon or
violated by the President. xxx If at all, the Commission on Appointments as a body
(rather than individual members of the Congress) may possess standing in this
case.[10]
Petitioners, on the other hand, state that the Court can exercise
its certiorari jurisdiction over unconstitutional acts of the President.[11] Petitioners
further contend that they possess standing because President Arroyos appointment
of department secretaries in an acting capacity while Congress is in session impairs
the powers of Congress. Petitioners cite Sanlakas v. Executive Secretary[12] as basis,
thus:
To the extent that the powers of Congress are impaired, so is the power of
each member thereof, since his office confers a right to participate in the exercise
of the powers of that institution.
Enrile as Minority Floor Leader, Senator Lacson as Assistant Minority Floor Leader,
and Senator Angara, Senator Ejercito-Estrada, and Senator Osmea as members.
xxx
(5) Temporarily discharge the duties of the Secretary in the latters absence
or inability to discharge his duties for any cause or in case of vacancy of the said
office, unless otherwise provided by law. Where there are more than one
Undersecretary, the Secretary shall allocate the foregoing powers and duties among
them. The President shall likewise make the temporary designation of Acting
Secretary from among them; and
xxx
In sharp contrast, respondents maintain that the President can issue appointments in
an acting capacity to department secretaries without the consent of the Commission
The President shall have the power to make appointments during the recess
of the Congress, whether voluntary or compulsory, but such appointments shall be
effective only until disapproval by the Commission on Appointments or until the
next adjournment of the Congress.
power of appointment. Sections 16 and 17, Chapter 5, Title I, Book III of EO 292
read:
SEC. 16. Power of Appointment. The President shall exercise the power
to appoint such officials as provided for in the Constitution and laws.
SEC. 17. Power to Issue Temporary Designation. (1) The President may
temporarily designate an officer already in the government service or any
other competent person to perform the functions of an office in the executive
branch, appointment to which is vested in him by law, when: (a) the officer
regularly appointed to the office is unable to perform his duties by reason of
illness, absence or any other cause; or (b) there exists a vacancy[.]
(2) The person designated shall receive the compensation attached to the
position, unless he is already in the government service in which case he shall
receive only such additional compensation as, with his existing salary, shall not
exceed the salary authorized by law for the position filled. The compensation
hereby authorized shall be paid out of the funds appropriated for the office or
agency concerned.
(3) In no case shall a temporary designation exceed one (1)
year. (Emphasis supplied)
the President such power. In contrast, respondents insist that the President can issue
such appointments because no law prohibits such appointments.
The essence of an appointment in an acting capacity is its temporary nature. It is a
stop-gap measure intended to fill an office for a limited time until the appointment
appointee to the office must necessarily have the Presidents confidence. Thus, by the
very nature of the office of a department secretary, the President must appoint in an
acting capacity a person of her choice even while Congress is in session. That person
may or may not be the permanent appointee, but practical reasons may make
it expedient that the acting appointee will also be the permanent appointee.
The law expressly allows the President to make such acting appointment.
Section 17, Chapter 5, Title I, Book III of EO 292 states that [t]he President may
temporarily designate an officer already in the government service or any other
competent person to perform the functions of an office in the executive branch.
Thus, the President may even appoint in an acting capacity a person not yet in the
Petitioners assert that Section 17 does not apply to appointments vested in the
President by the Constitution, because it only applies to appointments vested in the
President by law. Petitioners forget that Congress is not the only source of law. Law
refers to the Constitution, statutes or acts of Congress, municipal ordinances,
implementing rules issued pursuant to law, and judicial decisions. [17]
Appointments.
SO ORDERED.
ANTONIO T. CARPIO
Associate Justice
WE CONCUR:
CANCIO C. GARCIA
Associate Justice
CERTIFICATION
Pursuant to Section 13, Article VIII of the Constitution, it is hereby certified that the
conclusions in the above Decision were reached in consultation before the case was
assigned to the writer of the opinion of the Court.
[1]
Under Rule 65 of the Rules of Court.
[2]
Rollo, pp. 21-28.
[3]
Rollo, pp. 45-60.
[4]
Tolentino v. Commission on Elections, G.R. No. 148334, 21 January 2004, 420 SCRA 438 citing Gil v. Benipayo,
G.R. No. 148179, 26 June 2001 (minute resolution).
[5]
Tolentino v. Commission on Elections, G.R. No. 148334, 21 January 2004, 420 SCRA 438 citing Chief Supt. Acop
v. Secretary Guingona, Jr., 433 Phil. 62 (2002); Viola v. Hon. Alunan III, 343 Phil. 184 (1997); Alunan III v.
Mirasol, 342 Phil. 467 (1997).
[6]
See JOAQUIN G. BERNAS, S.J., THE 1987 CONSTITUTION OF THE REPUBLIC OF THE PHILIPPINES: A COMMENTARY
768 (1996).
[7]
See Sarmiento III v. Mison, No. L-79974, 17 December 1987, 156 SCRA 549.
[8]
See Manalang v. Quitoriano, et al., 94 Phil. 903 (1954); Flores v. Drilon, G.R. No. 104732, 22 June 1993, 223
SCRA 568.
[9]
Cunanan v. Tan, Jr., G.R. No. L-19721, 10 May 1962, 5 SCRA 1. But see Justice Concepcions Concurring Opinion
in Guevara v. Inocentes, 123 Phil. 201, 211 (1966).
[10]
Rollo, p. 38.
[11]
Ibid., p. 65.
[12]
G.R. No. 159085, 3 February 2004, 421 SCRA 656 citing Philippine Constitution Association v. Enriquez, G.R.
No. 113105, 19 August 1994, 235 SCRA 506.
[13]
Rollo, p. 14.
[14]
Also known as the Administrative Code of 1987.
[15]
Rollo, p. 12.
[16]
See Marohombsar v. Alonto, Jr., G.R. No. 93711, 25 February 1991, 194 SCRA 390.
[17]
Article 8, Civil Code. See National Amnesty Commission v. Commission on Audit, G.R. No. 156982, 8 September
2004, 437 SCRA 655.
[18]
JOAQUIN G. BERNAS, S.J., THE 1987 CONSTITUTION OF THE REPUBLIC OF THE PHILIPPINES: A COMMENTARY 772
(1996).