CONSTI II: ATTY. SUNGA – REPUBLIC V.

SANDIGANBAYAN 1

[G.R. No. 104768. July 21, 2003] Affidavits of members of the Military Security Unit, Military Security Command, Philippine Army,
Republic of the Philippines, petitioner, vs. Sandiganbayan, Major General Josephus Q. stationed at Camp Eldridge, Los Baos, Laguna, disclosed that Elizabeth Dimaano is the mistress
Ramas and Elizabeth Dimaano, respondents. of respondent. That respondent usually goes and stays and sleeps in the alleged house of
Elizabeth Dimaano in Barangay Tengga, Itaas, Batangas City and when he arrives, Elizabeth
DECISION Dimaano embraces and kisses respondent. That on February 25, 1986, a person who rode in a
CARPIO, J.: car went to the residence of Elizabeth Dimaano with four (4) attache cases filled with money and
owned by MGen Ramas.
The Case

Before this Court is a petition for review on certiorari seeking to set aside the Resolutions of Sworn statement in the record disclosed also that Elizabeth Dimaano had no visible means of
the Sandiganbayan (First Division)[1] dated 18 November 1991 and 25 March 1992 in Civil Case income and is supported by respondent for she was formerly a mere secretary.
No. 0037. The first Resolution dismissed petitioners Amended Complaint and ordered the return of
the confiscated items to respondent Elizabeth Dimaano, while the second Resolution denied
Taking in toto the evidence, Elizabeth Dimaano could not have used the military equipment/items
petitioners Motion for Reconsideration. Petitioner prays for the grant of the reliefs sought in its
seized in her house on March 3, 1986 without the consent of respondent, he being the
Amended Complaint, or in the alternative, for the remand of this case to the Sandiganbayan (First
Commanding General of the Philippine Army. It is also impossible for Elizabeth Dimaano to claim
Division) for further proceedings allowing petitioner to complete the presentation of its evidence.
that she owns the P2,870,000.00 and $50,000 US Dollars for she had no visible source of income.
Antecedent Facts
This money was never declared in the Statement of Assets and Liabilities of respondent. There
Immediately upon her assumption to office following the successful EDSA Revolution, then
was an intention to cover the existence of these money because these are all ill-gotten and
President Corazon C. Aquino issued Executive Order No. 1 (EO No. 1) creating the Presidential
unexplained wealth. Were it not for the affidavits of the members of the Military Security Unit
Commission on Good Government (PCGG). EO No. 1 primarily tasked the PCGG to recover all ill-
assigned at Camp Eldridge, Los Baos, Laguna, the existence and ownership of these money
gotten wealth of former President Ferdinand E. Marcos, his immediate family, relatives,
would have never been known.
subordinates and close associates. EO No. 1 vested the PCGG with the power (a) to conduct
investigation as may be necessary in order to accomplish and carry out the purposes of this order
and the power (h) to promulgate such rules and regulations as may be necessary to carry out the The Statement of Assets and Liabilities of respondent were also submitted for scrutiny and
purpose of this order. Accordingly, the PCGG, through its then Chairman Jovito R. Salonga, analysis by the Boards consultant. Although the amount of P2,870,000.00 and $50,000 US Dollars
created an AFP Anti-Graft Board (AFP Board) tasked to investigate reports of unexplained wealth were not included, still it was disclosed that respondent has an unexplained wealth of P104,134.
and corrupt practices by AFP personnel, whether in the active service or retired.[2] 60.

Based on its mandate, the AFP Board investigated various reports of alleged unexplained
IV. CONCLUSION:
wealth of respondent Major General Josephus Q. Ramas (Ramas). On 27 July 1987, the AFP
Board issued a Resolution on its findings and recommendation on the reported unexplained wealth
of Ramas. The relevant part of the Resolution reads: In view of the foregoing, the Board finds that a prima facie case exists against respondent for ill-
gotten and unexplained wealth in the amount of P2,974,134.00 and $50,000 US Dollars.
III. FINDINGS and EVALUATION:
V. RECOMMENDATION:
Evidence in the record showed that respondent is the owner of a house and lot located at 15-
Yakan St., La Vista, Quezon City. He is also the owner of a house and lot located in Cebu Wherefore it is recommended that Maj. Gen. Josephus Q. Ramas (ret.) be prosecuted and tried for
City. The lot has an area of 3,327 square meters. violation of RA 3019, as amended, otherwise known as Anti-Graft and Corrupt Practices Act and
RA 1379, as amended, otherwise known as The Act for the Forfeiture of Unlawfully Acquired
Property.[3]
The value of the property located in Quezon City may be estimated modestly at P700,000.00.

Thus, on 1 August 1987, the PCGG filed a petition for forfeiture under Republic Act No. 1379
The equipment/items and communication facilities which were found in the premises of Elizabeth
(RA No. 1379) [4] against Ramas.
Dimaano and were confiscated by elements of the PC Command of Batangas were all covered by
invoice receipt in the name of CAPT. EFREN SALIDO, RSO Command Coy, MSC, PA. These Before Ramas could answer the petition, then Solicitor General Francisco I. Chavez filed an
items could not have been in the possession of Elizabeth Dimaano if not given for her use by Amended Complaint naming the Republic of the Philippines (petitioner), represented by the
respondent Commanding General of the Philippine Army. PCGG, as plaintiff and Ramas as defendant. The Amended Complaint also impleaded Elizabeth
Dimaano (Dimaano) as co-defendant.
Aside from the military equipment/items and communications equipment, the raiding team was
The Amended Complaint alleged that Ramas was the Commanding General of the
also able to confiscate money in the amount of P2,870,000.00 and $50,000 US Dollars in the
Philippine Army until 1986. On the other hand, Dimaano was a confidential agent of the Military
house of Elizabeth Dimaano on 3 March 1986.
Security Unit, Philippine Army, assigned as a clerk-typist at the office of Ramas from 1 January
 CONSTI II: ATTY. SUNGA – REPUBLIC V. SANDIGANBAYAN 2

1978 to February 1979. The Amended Complaint further alleged that Ramas acquired funds, complaint to conform to its evidence, the Sandiganbayan reset the trial to 18 May 1990. The
assets and properties manifestly out of proportion to his salary as an army officer and his other Sandiganbayan, however, hinted that the re-setting was without prejudice to any action that private
income from legitimately acquired property by taking undue advantage of his public office and/or respondents might take under the circumstances.
using his power, authority and influence as such officer of the Armed Forces of the Philippines and
as a subordinate and close associate of the deposed President Ferdinand Marcos. [5] However, on 18 May 1990, petitioner again expressed its inability to proceed to trial because
it had no further evidence to present. Again, in the interest of justice, the Sandiganbayan granted
The Amended Complaint also alleged that the AFP Board, after a previous inquiry, found petitioner 60 days within which to file an appropriate pleading. The Sandiganbayan, however,
reasonable ground to believe that respondents have violated RA No. 1379. [6] The Amended warned petitioner that failure to act would constrain the court to take drastic action.
Complaint prayed for, among others, the forfeiture of respondents properties, funds and equipment
in favor of the State. Private respondents then filed their motions to dismiss based on Republic v. Migrino.[9] The
Court held in Migrino that the PCGG does not have jurisdiction to investigate and prosecute
Ramas filed an Answer with Special and/or Affirmative Defenses and Compulsory military officers by reason of mere position held without a showing that they are subordinates of
Counterclaim to the Amended Complaint. In his Answer, Ramas contended that his property former President Marcos.
consisted only of a residential house at La Vista Subdivision, Quezon City, valued at P700,000,
which was not out of proportion to his salary and other legitimate income. He denied ownership of On 18 November 1991, the Sandiganbayan rendered a resolution, the dispositive portion of
any mansion in Cebu City and the cash, communications equipment and other items confiscated which states:
from the house of Dimaano.
WHEREFORE, judgment is hereby rendered dismissing the Amended Complaint, without
Dimaano filed her own Answer to the Amended Complaint. Admitting her employment as a pronouncement as to costs. The counterclaims are likewise dismissed for lack of merit, but the
clerk-typist in the office of Ramas from January-November 1978 only, Dimaano claimed ownership confiscated sum of money, communications equipment, jewelry and land titles are ordered
of the monies, communications equipment, jewelry and land titles taken from her house by the returned to Elizabeth Dimaano.
Philippine Constabulary raiding team. The records of this case are hereby remanded and referred to the Hon. Ombudsman, who has
After termination of the pre-trial,[7] the court set the case for trial on the merits on 9-11 primary jurisdiction over the forfeiture cases under R.A. No. 1379, for such appropriate action as
November 1988. the evidence warrants. This case is also referred to the Commissioner of the Bureau of Internal
Revenue for a determination of any tax liability of respondent Elizabeth Dimaano in connection
On 9 November 1988, petitioner asked for a deferment of the hearing due to its lack of herewith.
preparation for trial and the absence of witnesses and vital documents to support its case. The
court reset the hearing to 17 and 18 April 1989. SO ORDERED.
On 13 April 1989, petitioner filed a motion for leave to amend the complaint in order to
charge the delinquent properties with being subject to forfeiture as having been unlawfully On 4 December 1991, petitioner filed its Motion for Reconsideration.
acquired by defendant Dimaano alone x x x.[8]
In answer to the Motion for Reconsideration, private respondents filed a Joint
Nevertheless, in an order dated 17 April 1989, the Sandiganbayan proceeded with Comment/Opposition to which petitioner filed its Reply on 10 January 1992.
petitioners presentation of evidence on the ground that the motion for leave to amend complaint
On 25 March 1992, the Sandiganbayan rendered a Resolution denying the Motion for
did not state when petitioner would file the amended complaint. The Sandiganbayan further stated
Reconsideration.
that the subject matter of the amended complaint was on its face vague and not related to the
existing complaint. The Sandiganbayan also held that due to the time that the case had been
pending in court, petitioner should proceed to present its evidence.

After presenting only three witnesses, petitioner asked for a postponement of the trial. Ruling of the Sandiganbayan

On 28 September 1989, during the continuation of the trial, petitioner manifested its inability
to proceed to trial because of the absence of other witnesses or lack of further evidence to The Sandiganbayan dismissed the Amended Complaint on the following grounds:
present. Instead, petitioner reiterated its motion to amend the complaint to conform to the evidence
already presented or to change the averments to show that Dimaano alone unlawfully acquired the (1.) The actions taken by the PCGG are not in accordance with the rulings of the Supreme
monies or properties subject of the forfeiture. Court in Cruz, Jr. v. Sandiganbayan[10] and Republic v. Migrino[11] which involve
The Sandiganbayan noted that petitioner had already delayed the case for over a year the same issues.
mainly because of its many postponements. Moreover, petitioner would want the case to revert to
its preliminary stage when in fact the case had long been ready for trial. The Sandiganbayan (2.) No previous inquiry similar to preliminary investigations in criminal cases was conducted
ordered petitioner to prepare for presentation of its additional evidence, if any. against Ramas and Dimaano.

During the trial on 23 March 1990, petitioner again admitted its inability to present further
evidence. Giving petitioner one more chance to present further evidence or to amend the
 CONSTI II: ATTY. SUNGA – REPUBLIC V. SANDIGANBAYAN 3

(3.) The evidence adduced against Ramas does not constitute a prima facie case against RESPONDENT DIMAANO WERE ILLEGALLY SEIZED AND
him. THEREFORE EXCLUDED AS EVIDENCE.[12]

The Courts Ruling

This case involves a revisiting of an old issue already decided by this Court in Cruz, Jr. v.
The Issues Sandiganbayan[13] and Republic v. Migrino.[14]

The primary issue for resolution is whether the PCGG has the jurisdiction to investigate and
cause the filing of a forfeiture petition against Ramas and Dimaano for unexplained wealth under
Petitioner raises the following issues:
RA No. 1379.
A. RESPONDENT COURT SERIOUSLY ERRED IN CONCLUDING THAT
We hold that PCGG has no such jurisdiction.
PETITIONERS EVIDENCE CANNOT MAKE A CASE FOR
FORFEITURE AND THAT THERE WAS NO SHOWING OF The PCGG created the AFP Board to investigate the unexplained wealth and corrupt
CONSPIRACY, COLLUSION OR RELATIONSHIP BY practices of AFP personnel, whether in the active service or retired.[15] The PCGG tasked the AFP
CONSANGUINITY OR AFFINITY BY AND BETWEEN Board to make the necessary recommendations to appropriate government agencies on the action
RESPONDENT RAMAS AND RESPONDENT DIMAANO to be taken based on its findings.[16] The PCGG gave this task to the AFP Board pursuant to the
NOTWITHSTANDING THE FACT THAT SUCH PCGGs power under Section 3 of EO No. 1 to conduct investigation as may be necessary in order
CONCLUSIONS WERE CLEARLY UNFOUNDED AND to accomplish and to carry out the purposes of this order.EO No. 1 gave the PCGG specific
PREMATURE, HAVING BEEN RENDERED PRIOR TO THE responsibilities, to wit:
COMPLETION OF THE PRESENTATION OF THE
EVIDENCE OF THE PETITIONER.
SEC. 2. The Commission shall be charged with the task of assisting the President in regard to the
B. RESPONDENT COURT SERIOUSLY ERRED IN HOLDING THAT THE following matters:
ACTIONS TAKEN BY THE PETITIONER, INCLUDING THE
FILING OF THE ORIGINAL COMPLAINT AND THE (a) The recovery of all ill-gotten wealth accumulated by former President Ferdinand E.
AMENDED COMPLAINT, SHOULD BE STRUCK OUT IN Marcos, his immediate family, relatives, subordinates and close associates,
LINE WITH THE RULINGS OF THE SUPREME COURT IN whether located in the Philippines or abroad, including the takeover and
CRUZ, JR. v. SANDIGANBAYAN, 194 SCRA 474 AND sequestration of all business enterprises and entities owned or controlled by
REPUBLIC v. MIGRINO, 189 SCRA 289, them, during his administration, directly or through nominees, by taking
NOTWITHSTANDING THE FACT THAT: undue advantage of their public office and/ or using their powers, authority,
influence, connections or relationship.
1. The cases of Cruz, Jr. v. Sandiganbayan, supra, and Republic v.
Migrino, supra, are clearly not applicable to this case; (b) The investigation of such cases of graft and corruption as the President may
assign to the Commission from time to time.
2. Any procedural defect in the institution of the complaint in Civil
Case No. 0037 was cured and/or waived by respondents x x x.
with the filing of their respective answers with
counterclaim; and The PCGG, through the AFP Board, can only investigate the unexplained wealth and corrupt
practices of AFP personnel who fall under either of the two categories mentioned in Section 2 of
EO No. 1. These are: (1) AFP personnel who have accumulated ill-gotten wealth during the
3. The separate motions to dismiss were evidently improper
administration of former President Marcos by being the latters immediate family, relative,
considering that they were filed after commencement of
subordinate or close associate, taking undue advantage of their public office or using their powers,
the presentation of the evidence of the petitioner and
influence x x x;[17] or (2) AFP personnel involved in other cases of graft and corruption provided the
even before the latter was allowed to formally offer its
President assigns their cases to the PCGG.[18]
evidence and rest its case;
Petitioner, however, does not claim that the President assigned Ramas case to the
C. RESPONDENT COURT SERIOUSLY ERRED IN HOLDING THAT THE PCGG. Therefore, Ramas case should fall under the first category of AFP personnel before the
ARTICLES AND THINGS SUCH AS SUMS OF MONEY, PCGG could exercise its jurisdiction over him. Petitioner argues that Ramas was undoubtedly a
COMMUNICATIONS EQUIPMENT, JEWELRY AND LAND subordinate of former President Marcos because of his position as the Commanding General of
TITLES CONFISCATED FROM THE HOUSE OF
 CONSTI II: ATTY. SUNGA – REPUBLIC V. SANDIGANBAYAN 4

the Philippine Army. Petitioner claims that Ramas position enabled him to receive orders directly Petitioners attempt to differentiate the instant case from Migrino does not convince
from his commander-in-chief, undeniably making him a subordinate of former President Marcos. us. Petitioner argues that unlike in Migrino, the AFP Board Resolution in the instant case states
that the AFP Board conducted the investigation pursuant to EO Nos. 1, 2, 14 and 14-A in relation
We hold that Ramas was not a subordinate of former President Marcos in the sense to RA No. 1379. Petitioner asserts that there is a presumption that the PCGG was acting within its
contemplated under EO No. 1 and its amendments. jurisdiction of investigating crony-related cases of graft and corruption and that Ramas was truly a
Mere position held by a military officer does not automatically make him a subordinate as subordinate of the former President. However, the same AFP Board Resolution belies this
this term is used in EO Nos. 1, 2, 14 and 14-A absent a showing that he enjoyed close association contention. Although the Resolution begins with such statement, it ends with the following
with former President Marcos. Migrino discussed this issue in this wise: recommendation:

A close reading of EO No. 1 and related executive orders will readily show what is contemplated V. RECOMMENDATION:
within the term subordinate. The Whereas Clauses of EO No. 1 express the urgent need to
recover the ill-gotten wealth amassed by former President Ferdinand E. Marcos, his immediate Wherefore it is recommended that Maj. Gen. Josephus Q. Ramas (ret.) be prosecuted and tried for
family, relatives, and close associates both here and abroad. violation of RA 3019, as amended, otherwise known as Anti-Graft and Corrupt Practices Act and
RA 1379, as amended, otherwise known as The Act for the Forfeiture of Unlawfully Acquired
EO No. 2 freezes all assets and properties in the Philippines in which former President Marcos Property.[20]
and/or his wife, Mrs. Imelda Marcos, their close relatives, subordinates, business associates,
dummies, agents, or nominees have any interest or participation. Thus, although the PCGG sought to investigate and prosecute private respondents under EO Nos.
1, 2, 14 and 14-A, the result yielded a finding of violation of Republic Acts Nos. 3019 and 1379
Applying the rule in statutory construction known as ejusdem generis that is- without any relation to EO Nos. 1, 2, 14 and 14-A. This absence of relation to EO No. 1 and its
amendments proves fatal to petitioners case. EO No. 1 created the PCGG for a specific and
limited purpose, and necessarily its powers must be construed to address such specific and limited
[W]here general words follow an enumeration of persons or things by words of a particular and purpose.
specific meaning, such general words are not to be construed in their widest extent, but are to be
held as applying only to persons or things of the same kind or class as those specifically Moreover, the resolution of the AFP Board and even the Amended Complaint do not show
mentioned [Smith, Bell & Co, Ltd. vs. Register of Deeds of Davao, 96 Phil. 53, 58, citing Black on that the properties Ramas allegedly owned were accumulated by him in his capacity as a
Interpretation of Laws, 2nd Ed., 203]. subordinate of his commander-in-chief. Petitioner merely enumerated the properties Ramas
allegedly owned and suggested that these properties were disproportionate to his salary and other
[T]he term subordinate as used in EO Nos. 1 & 2 refers to one who enjoys a close association with legitimate income without showing that Ramas amassed them because of his close association
former President Marcos and/or his wife, similar to the immediate family member, relative, and with former President Marcos. Petitioner, in fact, admits that the AFP Board resolution does not
close associate in EO No. 1 and the close relative, business associate, dummy, agent, or contain a finding that Ramas accumulated his wealth because of his close association with former
nominee in EO No. 2. President Marcos, thus:

xxx 10. While it is true that the resolution of the Anti-Graft Board of the New Armed Forces of the
Philippines did not categorically find a prima facie evidence showing that respondent
Ramas unlawfully accumulated wealth by virtue of his close association or relation with
It does not suffice, as in this case, that the respondent is or was a government official or employee former President Marcos and/or his wife, it is submitted that such omission was not
during the administration of former President Marcos. There must be a prima facie showing that fatal. The resolution of the Anti-Graft Board should be read in the context of the law creating the
the respondent unlawfully accumulated wealth by virtue of his close association or relation same and the objective of the investigation which was, as stated in the above, pursuant to
with former Pres. Marcos and/or his wife. (Emphasis supplied) Republic Act Nos. 3019 and 1379 in relation to Executive Order Nos. 1, 2, 14 and 14-
a;[21] (Emphasis supplied)
Ramas position alone as Commanding General of the Philippine Army with the rank of Major
General[19] does not suffice to make him a subordinate of former President Marcos for purposes of Such omission is fatal. Petitioner forgets that it is precisely a prima facie showing that the ill-
EO No. 1 and its amendments. The PCGG has to provide a prima facie showing that Ramas was a gotten wealth was accumulated by a subordinate of former President Marcos that vests jurisdiction
close associate of former President Marcos, in the same manner that business associates, on PCGG. EO No. 1[22] clearly premises the creation of the PCGG on the urgent need to recover all
dummies, agents or nominees of former President Marcos were close to him. Such close ill-gotten wealth amassed by former President Marcos, his immediate family, relatives,
association is manifested either by Ramas complicity with former President Marcos in the subordinates and close associates. Therefore, to say that such omission was not fatal is clearly
accumulation of ill-gotten wealth by the deposed President or by former President Marcos contrary to the intent behind the creation of the PCGG.
acquiescence in Ramas own accumulation of ill-gotten wealth if any.
In Cruz, Jr. v. Sandiganbayan,[23] the Court outlined the cases that fall under the jurisdiction
This, the PCGG failed to do. of the PCGG pursuant to EO Nos. 1, 2,[24] 14,[25] 14-A:[26]
 CONSTI II: ATTY. SUNGA – REPUBLIC V. SANDIGANBAYAN 5

A careful reading of Sections 2(a) and 3 of Executive Order No. 1 in relation with Sections 1, 2 and Petitioner has no jurisdiction over private respondents. Thus, there is no jurisdiction to waive
3 of Executive Order No. 14, shows what the authority of the respondent PCGG to investigate and in the first place. The PCGG cannot exercise investigative or prosecutorial powers never granted
prosecute covers: to it. PCGGs powers are specific and limited. Unless given additional assignment by the President,
PCGGs sole task is only to recover the ill-gotten wealth of the Marcoses, their relatives and
(a) the investigation and prosecution of the civil action for the recovery of ill-gotten cronies.[29] Without these elements, the PCGG cannot claim jurisdiction over a case.
wealth under Republic Act No. 1379, accumulated by former President Private respondents questioned the authority and jurisdiction of the PCGG to investigate and
Marcos, his immediate family, relatives, subordinates and close prosecute their cases by filing their Motion to Dismiss as soon as they learned of the
associates, whether located in the Philippines or abroad, including the take- pronouncement of the Court in Migrino. This case was decided on 30 August 1990, which
over or sequestration of all business enterprises and entities owned or explains why private respondents only filed their Motion to Dismiss on 8 October
controlled by them, during his administration, directly or through his 1990.Nevertheless, we have held that the parties may raise lack of jurisdiction at any stage of the
nominees, by taking undue advantage of their public office and/or using proceeding.[30] Thus, we hold that there was no waiver of jurisdiction in this case. Jurisdiction is
their powers, authority and influence, connections or relationships; and vested by law and not by the parties to an action.[31]

(b) the investigation and prosecution of such offenses committed in the acquisition of Consequently, the petition should be dismissed for lack of jurisdiction by the PCGG to
said ill-gotten wealth as contemplated under Section 2(a) of Executive Order conduct the preliminary investigation. The Ombudsman may still conduct the proper preliminary
No. 1. investigation for violation of RA No. 1379, and if warranted, the Solicitor General may file the
forfeiture petition with the Sandiganbayan.[32] The right of the State to forfeit unexplained wealth
under RA No. 1379 is not subject to prescription, laches or estoppel.[33]
However, other violations of the Anti-Graft and Corrupt Practices Act not otherwise falling
under the foregoing categories, require a previous authority of the President for the Second Issue: Propriety of Dismissal of Case
respondent PCGG to investigate and prosecute in accordance with Section 2 (b) of Before Completion of Presentation of Evidence
Executive Order No. 1. Otherwise, jurisdiction over such cases is vested in the Ombudsman
Petitioner also contends that the Sandiganbayan erred in dismissing the case before
and other duly authorized investigating agencies such as the provincial and city
completion of the presentation of petitioners evidence.
prosecutors, their assistants, the Chief State Prosecutor and his assistants and the state
prosecutors. (Emphasis supplied) We disagree.

Based on the findings of the Sandiganbayan and the records of this case, we find that
The proper government agencies, and not the PCGG, should investigate and prosecute
petitioner has only itself to blame for non-completion of the presentation of its evidence.First, this
forfeiture petitions not falling under EO No. 1 and its amendments. The preliminary investigation of
case has been pending for four years before the Sandiganbayan dismissed it. Petitioner filed its
unexplained wealth amassed on or before 25 February 1986 falls under the jurisdiction of the
Amended Complaint on 11 August 1987, and only began to present itsevidence on 17 April
Ombudsman, while the authority to file the corresponding forfeiture petition rests with the Solicitor
1989. Petitioner had almost two years to prepare its evidence. However, despite this sufficient
General.[27] The Ombudsman Act or Republic Act No. 6770 (RA No. 6770) vests in the
time, petitioner still delayed the presentation of the rest of its evidence by filing numerous motions
Ombudsman the power to conduct preliminary investigation and to file forfeiture proceedings
for postponements and extensions. Even before the date set for the presentation of its evidence,
involving unexplained wealth amassed after 25 February 1986.[28]
petitioner filed, on 13 April 1989, a Motion for Leave to Amend the Complaint. [34] The motion
After the pronouncements of the Court in Cruz, the PCGG still pursued this case despite the sought to charge the delinquent properties (which comprise most of petitioners evidence) with
absence of a prima facie finding that Ramas was a subordinate of former President Marcos. The being subject to forfeiture as having been unlawfully acquired by defendant Dimaano alone x x x.
petition for forfeiture filed with the Sandiganbayan should be dismissed for lack of authority by the
The Sandiganbayan, however, refused to defer the presentation of petitioners evidence
PCGG to investigate respondents since there is no prima facieshowing that EO No. 1 and its
since petitioner did not state when it would file the amended complaint. On 18 April 1989, the
amendments apply to respondents. The AFP Board Resolution and even the Amended Complaint
Sandiganbayan set the continuation of the presentation of evidence on 28-29 September and 9-11
state that there are violations of RA Nos. 3019 and 1379. Thus, the PCGG should have
October 1989, giving petitioner ample time to prepare its evidence. Still, on 28 September 1989,
recommended Ramas case to the Ombudsman who has jurisdiction to conduct the preliminary
petitioner manifested its inability to proceed with the presentation of its evidence. The
investigation of ordinary unexplained wealth and graft cases. As stated in Migrino:
Sandiganbayan issued an Order expressing its view on the matter, to wit:

[But] in view of the patent lack of authority of the PCGG to investigate and cause the prosecution
The Court has gone through extended inquiry and a narration of the above events because this
of private respondent for violation of Rep. Acts Nos. 3019 and 1379, the PCGG must also be
case has been ready for trial for over a year and much of the delay hereon has been due to the
enjoined from proceeding with the case, without prejudice to any action that may be taken by the
inability of the government to produce on scheduled dates for pre-trial and for trial documents and
proper prosecutory agency. The rule of law mandates that an agency of government be allowed to
witnesses, allegedly upon the failure of the military to supply them for the preparation of the
exercise only the powers granted to it.
presentation of evidence thereon. Of equal interest is the fact that this Court has been held to task
in public about its alleged failure to move cases such as this one beyond the preliminary stage,
Petitioners argument that private respondents have waived any defect in the filing of the when, in view of the developments such as those of today, this Court is now faced with a situation
forfeiture petition by submitting their respective Answers with counterclaim deserves no merit as
well.
 CONSTI II: ATTY. SUNGA – REPUBLIC V. SANDIGANBAYAN 6

where a case already in progress will revert back to the preliminary stage, despite a five-month contends that all rights under the Bill of Rights had already reverted to its embryonic stage at the
pause where appropriate action could have been undertaken by the plaintiff Republic.[35] time of the search. Therefore, the government may confiscate the monies and items taken from
Dimaano and use the same in evidence against her since at the time of their seizure, private
On 9 October 1989, the PCGG manifested in court that it was conducting a preliminary respondents did not enjoy any constitutional right.
investigation on the unexplained wealth of private respondents as mandated by RA No. Petitioner is partly right in its arguments.
1379.[36] The PCGG prayed for an additional four months to conduct the preliminary investigation.
The Sandiganbayan granted this request and scheduled the presentation of evidence on 26-29 The EDSA Revolution took place on 23-25 February 1986. As succinctly stated in President
March 1990. However, on the scheduled date, petitioner failed to inform the court of the result of Aquinos Proclamation No. 3 dated 25 March 1986, the EDSA Revolution was done in defiance of
the preliminary investigation the PCGG supposedly conducted. Again, the Sandiganbayan gave the provisions of the 1973 Constitution.[41] The resulting government was indisputably a
petitioner until 18 May 1990 to continue with the presentation of its evidence and to inform the revolutionary government bound by no constitution or legal limitations except treaty obligations that
court of what lies ahead insofar as the status of the case is concerned x x x. [37] Still on the date set, the revolutionary government, as the de jure government in the Philippines, assumed under
petitioner failed to present its evidence. Finally, on 11 July 1990, petitioner filed its Re-Amended international law.
Complaint.[38] The Sandiganbayan correctly observed that a case already pending for years would
revert to its preliminary stage if the court were to accept the Re-Amended Complaint. The correct issues are: (1) whether the revolutionary government was bound by the Bill of
Rights of the 1973 Constitution during the interregnum, that is, after the actual and effective take-
Based on these circumstances, obviously petitioner has only itself to blame for failure to over of power by the revolutionary government following the cessation of resistance by loyalist
complete the presentation of its evidence. The Sandiganbayan gave petitioner more than sufficient forces up to 24 March 1986 (immediately before the adoption of the Provisional Constitution); and
time to finish the presentation of its evidence. The Sandiganbayan overlooked petitioners delays (2) whether the protection accorded to individuals under the International Covenant on Civil and
and yet petitioner ended the long-string of delays with the filing of a Re-Amended Complaint, which Political Rights (Covenant) and the Universal Declaration of Human Rights (Declaration) remained
would only prolong even more the disposition of the case. in effect during the interregnum.

Moreover, the pronouncements of the Court in Migrino and Cruz prompted the We hold that the Bill of Rights under the 1973 Constitution was not operative during the
Sandiganbayan to dismiss the case since the PCGG has no jurisdiction to investigate and interregnum. However, we rule that the protection accorded to individuals under the Covenant and
prosecute the case against private respondents. This alone would have been sufficient legal basis the Declaration remained in effect during the interregnum.
for the Sandiganbayan to dismiss the forfeiture case against private respondents.
During the interregnum, the directives and orders of the revolutionary government were the
Thus, we hold that the Sandiganbayan did not err in dismissing the case before completion supreme law because no constitution limited the extent and scope of such directives and
of the presentation of petitioners evidence. orders. With the abrogation of the 1973 Constitution by the successful revolution, there was no
municipal law higher than the directives and orders of the revolutionary government. Thus, during
Third Issue: Legality of the Search and Seizure the interregnum, a person could not invoke any exclusionary right under a Bill of Rights because
Petitioner claims that the Sandiganbayan erred in declaring the properties confiscated from there was neither a constitution nor a Bill of Rights during the interregnum. As the Court explained
Dimaanos house as illegally seized and therefore inadmissible in evidence. This issue bears a in Letter of Associate Justice Reynato S. Puno:[42]
significant effect on petitioners case since these properties comprise most of petitioners evidence
against private respondents. Petitioner will not have much evidence to support its case against A revolution has been defined as the complete overthrow of the established government in any
private respondents if these properties are inadmissible in evidence. country or state by those who were previously subject to it or as a sudden, radical and
fundamental change in the government or political system, usually effected with violence or at
On 3 March 1986, the Constabulary raiding team served at Dimaanos residence a search
least some acts of violence. In Kelsen's book, General Theory of Law and State, it is defined as
warrant captioned Illegal Possession of Firearms and Ammunition. Dimaano was not present
that which occurs whenever the legal order of a community is nullified and replaced by a new order
during the raid but Dimaanos cousins witnessed the raid. The raiding team seized the items
. . . a way not prescribed by the first order itself.
detailed in the seizure receipt together with other items not included in the search warrant. The
raiding team seized these items: one baby armalite rifle with two magazines; 40 rounds of 5.56
ammunition; one pistol, caliber .45; communications equipment, cash consisting of P2,870,000 It was through the February 1986 revolution, a relatively peaceful one, and more popularly known
and US$50,000, jewelry, and land titles. as the people power revolution that the Filipino people tore themselves away from an existing
regime. This revolution also saw the unprecedented rise to power of the Aquino government.
Petitioner wants the Court to take judicial notice that the raiding team conducted the search
and seizure on March 3, 1986 or five days after the successful EDSA revolution.[39]Petitioner
From the natural law point of view, the right of revolution has been defined as an inherent right of a
argues that a revolutionary government was operative at that time by virtue of Proclamation No. 1
people to cast out their rulers, change their policy or effect radical reforms in their system of
announcing that President Aquino and Vice President Laurel were taking power in the name and
government or institutions by force or a general uprising when the legal and constitutional methods
by the will of the Filipino people.[40] Petitioner asserts that the revolutionary government effectively
of making such change have proved inadequate or are so obstructed as to be unavailable. It has
withheld the operation of the 1973 Constitution which guaranteed private respondents exclusionary
been said that the locus of positive law-making power lies with the people of the state and from
right.
there is derived the right of the people to abolish, to reform and to alter any existing form of
Moreover, petitioner argues that the exclusionary right arising from an illegal search applies government without regard to the existing constitution.
only beginning 2 February 1987, the date of ratification of the 1987 Constitution.Petitioner
 CONSTI II: ATTY. SUNGA – REPUBLIC V. SANDIGANBAYAN 7

xxx For instance, I have carefully studied Minister Salongas lecture in the Gregorio
Araneta University Foundation, of which all of us have been given a copy. On the one
It is widely known that Mrs. Aquinos rise to the presidency was not due to constitutional hand, he argues that everything the Commission is doing is traditionally legal. This is
processes; in fact, it was achieved in violation of the provisions of the 1973 Constitution as repeated by Commissioner Romulo also. Minister Salonga spends a major portion of
a Batasang Pambansa resolution had earlier declared Mr. Marcos as the winner in the 1986 his lecture developing that argument. On the other hand, almost as an afterthought, he
presidential election. Thus it can be said that the organization of Mrs. Aquinos Government says that in the end what matters are the results and not the legal niceties, thus
which was met by little resistance and her control of the state evidenced by the appointment of the suggesting that the PCGG should be allowed to make some legal shortcuts, another
Cabinet and other key officers of the administration, the departure of the Marcos Cabinet officials, word for niceties or exceptions.
revamp of the Judiciary and the Military signaled the point where the legal system then in effect, Now, if everything the PCGG is doing is legal, why is it asking the CONCOM for
had ceased to be obeyed by the Filipino. (Emphasis supplied) special protection? The answer is clear. What they are doing will not stand the test
of ordinary due process, hence they are asking for protection, for
exceptions. Grandes malos, grandes remedios, fine, as the saying stands, but let us
To hold that the Bill of Rights under the 1973 Constitution remained operative during the not say grandes malos, grande y malos remedios. That is not an allowable
interregnum would render void all sequestration orders issued by the Philippine Commission on extrapolation. Hence, we should not give the exceptions asked for, and let me
Good Government (PCGG) before the adoption of the Freedom Constitution. The sequestration elaborate and give three reasons:
orders, which direct the freezing and even the take-over of private property by mere executive First, the whole point of the February Revolution and of the work of the CONCOM is to
issuance without judicial action, would violate the due process and search and seizure clauses of hasten constitutional normalization. Very much at the heart of the constitutional
the Bill of Rights. normalization is the full effectivity of the Bill of Rights. We cannot, in one breath, ask
During the interregnum, the government in power was concededly a revolutionary for constitutional normalization and at the same time ask for a temporary halt to the full
government bound by no constitution. No one could validly question the sequestration orders as functioning of what is at the heart of constitutionalism. That would be hypocritical; that
violative of the Bill of Rights because there was no Bill of Rights during the interregnum. However, would be a repetition of Marcosian protestation of due process and rule of law. The
upon the adoption of the Freedom Constitution, the sequestered companies assailed the New Society word for that is backsliding. It is tragic when we begin to backslide even
sequestration orders as contrary to the Bill of Rights of the Freedom Constitution. before we get there.
Second, this is really a corollary of the first. Habits tend to become ingrained. The
In Bataan Shipyard & Engineering Co. Inc. vs. Presidential Commission on Good committee report asks for extraordinary exceptions from the Bill of Rights for six
Government,[43] petitioner Baseco, while conceding there was no Bill of Rights during the months after the convening of Congress, and Congress may even extend this longer.
interregnum, questioned the continued validity of the sequestration orders upon adoption of the Good deeds repeated ripen into virtue; bad deeds repeated become vice. What the
Freedom Constitution in view of the due process clause in its Bill of Rights. The Court ruled that committee report is asking for is that we should allow the new government to acquire
the Freedom Constitution, and later the 1987 Constitution, expressly recognized the validity of the vice of disregarding the Bill of Rights.
sequestration orders, thus: Vices, once they become ingrained, become difficult to shed. The practitioners of the
vice begin to think that they have a vested right to its practice, and they will fight tooth
If any doubt should still persist in the face of the foregoing considerations as to the validity and and nail to keep the franchise. That would be an unhealthy way of consolidating the
propriety of sequestration, freeze and takeover orders, it should be dispelled by the fact that these gains of a democratic revolution.
particular remedies and the authority of the PCGG to issue them have received constitutional Third, the argument that what matters are the results and not the legal niceties is an
approbation and sanction. As already mentioned, the Provisional or Freedom Constitution argument that is very disturbing. When it comes from a staunch Christian like
recognizes the power and duty of the President to enact measures to achieve the mandate of the Commissioner Salonga, a Minister, and repeated verbatim by another staunch
people to . . . (r)ecover ill-gotten properties amassed by the leaders and supporters of the previous Christian like Commissioner Tingson, it becomes doubly disturbing and even
regime and protect the interest of the people through orders of sequestration or freezing of assets discombobulating. The argument makes the PCGG an auctioneer, placing the Bill of
or accounts. And as also already adverted to, Section 26, Article XVIII of the 1987 Constitution Rights on the auction block. If the price is right, the search and seizure clause will be
treats of, and ratifies the authority to issue sequestration or freeze orders under Proclamation No. sold. Open your Swiss bank account to us and we will award you the search and
3 dated March 25, 1986. seizure clause. You can keep it in your private safe.
Alternatively, the argument looks on the present government as hostage to the
hoarders of hidden wealth. The hoarders will release the hidden health if the ransom
The framers of both the Freedom Constitution and the 1987 Constitution were fully aware price is paid and the ransom price is the Bill of Rights, specifically the due process in
that the sequestration orders would clash with the Bill of Rights. Thus, the framers of both the search and seizure clauses. So, there is something positively revolving about
constitutions had to include specific language recognizing the validity of the sequestration either argument. The Bill of Rights is not for sale to the highest bidder nor can it be
orders. The following discourse by Commissioner Joaquin G. Bernas during the deliberations of used to ransom captive dollars. This nation will survive and grow strong, only if it
the Constitutional Commission is instructive: would become convinced of the values enshrined in the Constitution of a price that is
beyond monetary estimation.
FR. BERNAS: Madam President, there is something schizophrenic about the arguments in For these reasons, the honorable course for the Constitutional Commission is to
defense of the present amendment. delete all of Section 8 of the committee report and allow the new Constitution to take
effect in full vigor. If Section 8 is deleted, the PCGG has two options. First, it can
 CONSTI II: ATTY. SUNGA – REPUBLIC V. SANDIGANBAYAN 8

pursue the Salonga and the Romulo argument that what the PCGG has been doing as a self-limitation by the revolutionary government to avoid abuses of the absolute powers
has been completely within the pale of the law. If sustained, the PCGG can go on and entrusted to it by the people.
should be able to go on, even without the support of Section 8. If not sustained,
however, the PCGG has only one honorable option, it must bow to the majesty of the During the interregnum when no constitution or Bill of Rights existed, directives and orders
Bill of Rights. issued by government officers were valid so long as these officers did not exceed the authority
The PCGG extrapolation of the law is defended by staunch Christians. Let me granted them by the revolutionary government. The directives and orders should not have also
conclude with what another Christian replied when asked to toy around with the law. violated the Covenant or the Declaration. In this case, the revolutionary government presumptively
From his prison cell, Thomas More said, "I'll give the devil benefit of law for my nations sanctioned the warrant since the revolutionary government did not repudiate it. The warrant,
safety sake. I ask the Commission to give the devil benefit of law for our nations sake. issued by a judge upon proper application, specified the items to be searched and seized. The
And we should delete Section 8. warrant is thus valid with respect to the items specifically described in the warrant.
Thank you, Madam President. (Emphasis supplied) However, the Constabulary raiding team seized items not included in the warrant. As
admitted by petitioners witnesses, the raiding team confiscated items not included in the warrant,
Despite the impassioned plea by Commissioner Bernas against the amendment thus:
excepting sequestration orders from the Bill of Rights, the Constitutional Commission still adopted
the amendment as Section 26,[44] Article XVIII of the 1987 Constitution. The framers of the Direct Examination of Capt. Rodolfo Sebastian
Constitution were fully aware that absent Section 26, sequestration orders would not stand the test AJ AMORES
of due process under the Bill of Rights.

Thus, to rule that the Bill of Rights of the 1973 Constitution remained in force during the Q. According to the search warrant, you are supposed to seize only for
interregnum, absent a constitutional provision excepting sequestration orders from such Bill of weapons. What else, aside from the weapons, were seized from the
Rights, would clearly render all sequestration orders void during the interregnum. Nevertheless, house of Miss Elizabeth Dimaano?
even during the interregnum the Filipino people continued to enjoy, under the Covenant and the
Declaration, almost the same rights found in the Bill of Rights of the 1973 Constitution. A. The communications equipment, money in Philippine currency and US
dollars, some jewelries, land titles, sir.
The revolutionary government, after installing itself as the de jure government, assumed
responsibility for the States good faith compliance with the Covenant to which the Philippines is a Q. Now, the search warrant speaks only of weapons to be seized from the
signatory. Article 2(1) of the Covenant requires each signatory State to respect and to ensure to all house of Elizabeth Dimaano. Do you know the reason why your team
individuals within its territory and subject to its jurisdiction the rights [45] recognized in the present also seized other properties not mentioned in said search warrant?
Covenant. Under Article 17(1) of the Covenant, the revolutionary government had the duty to A. During the conversation right after the conduct of said raid, I was informed
insure that [n]o one shall be subjected to arbitrary or unlawful interference with his privacy, family, that the reason why they also brought the other items not included in
home or correspondence. the search warrant was because the money and other jewelries were
contained in attach cases and cartons with markings Sony Trinitron, and
The Declaration, to which the Philippines is also a signatory, provides in its Article 17(2) that I think three (3) vaults or steel safes. Believing that the attach cases and
[n]o one shall be arbitrarily deprived of his property. Although the signatories to the Declaration did the steel safes were containing firearms, they forced open these
not intend it as a legally binding document, being only a declaration, the Court has interpreted the containers only to find out that they contained money.
Declaration as part of the generally accepted principles of international law and binding on the
State.[46] Thus, the revolutionary government was also obligated under international law to observe xxx
the rights[47] of individuals under the Declaration.

The revolutionary government did not repudiate the Covenant or the Declaration during the Q. You said you found money instead of weapons, do you know the reason why
interregnum. Whether the revolutionary government could have repudiated all its obligations under your team seized this money instead of weapons?
the Covenant or the Declaration is another matter and is not the issue here. Suffice it to say that A. I think the overall team leader and the other two officers assisting him
the Court considers the Declaration as part of customary international law, and that Filipinos as decided to bring along also the money because at that time it was
human beings are proper subjects of the rules of international law laid down in the Covenant. The already dark and they felt most secured if they will bring that because
fact is the revolutionary government did not repudiate the Covenant or the Declaration in the same they might be suspected also of taking money out of those items, your
way it repudiated the 1973 Constitution. As the de jure government, the revolutionary government Honor.[49]
could not escape responsibility for the States good faith compliance with its treaty obligations
under international law. Cross-examination
Atty. Banaag
It was only upon the adoption of the Provisional Constitution on 25 March 1986 that the
directives and orders of the revolutionary government became subject to a higher municipal law
that, if contravened, rendered such directives and orders void. The Provisional Constitution Q. Were you present when the search warrant in connection with this case was
adopted verbatim the Bill of Rights of the 1973 Constitution. [48] The Provisional Constitution served applied before the Municipal Trial Court of Batangas, Branch 1?
 CONSTI II: ATTY. SUNGA – REPUBLIC V. SANDIGANBAYAN 9

A. Yes, sir. Q. Because the armalite rifle you seized, as well as the .45 caliber pistol had a
Memorandum Receipt in the name of Felino Melegrito, is that not
Q. And the search warrant applied for by you was for the search and seizure of correct?
five (5) baby armalite rifles M-16 and five (5) boxes of ammunition? A. I think that was the reason, sir.
A. Yes, sir.
Q. There were other articles seized which were not included in the search
xxx warrant, like for instance, jewelries. Why did you seize the jewelries?
A. I think it was the decision of the overall team leader and his assistant to bring
along also the jewelries and other items, sir. I do not really know where
AJ AMORES it was taken but they brought along also these articles. I do not really
know their reason for bringing the same, but I just learned that these
Q. Before you applied for a search warrant, did you conduct surveillance in the were taken because they might get lost if they will just leave this behind.
house of Miss Elizabeth Dimaano?
A. The Intelligence Operatives conducted surveillance together with the MSU xxx
elements, your Honor.

Q. And this party believed there were weapons deposited in the house of Miss Q. How about the money seized by your raiding team, they were not also
Elizabeth Dimaano? included in the search warrant?
A. Yes, your Honor. A. Yes sir, but I believe they were also taken considering that the money was
discovered to be contained in attach cases. These attach cases were
Q. And they so swore before the Municipal Trial Judge? suspected to be containing pistols or other high powered firearms, but in
A. Yes, your Honor. the course of the search the contents turned out to be money. So the
Q. But they did not mention to you, the applicant for the search warrant, any team leader also decided to take this considering that they believed that
other properties or contraband which could be found in the residence of if they will just leave the money behind, it might get lost also.
Miss Elizabeth Dimaano? Q. That holds true also with respect to the other articles that were seized by
A. They just gave us still unconfirmed report about some hidden items, for your raiding team, like Transfer Certificates of Title of lands?
instance, the communications equipment and money. However, I did A. Yes, sir. I think they were contained in one of the vaults that were opened.[51]
not include that in the application for search warrant considering that we
have not established concrete evidence about that. So when It is obvious from the testimony of Captain Sebastian that the warrant did not include the
monies, communications equipment, jewelry and land titles that the raiding team confiscated. The
Q. So that when you applied for search warrant, you had reason to believe that search warrant did not particularly describe these items and the raiding team confiscated them on
only weapons were in the house of Miss Elizabeth Dimaano? its own authority. The raiding team had no legal basis to seize these items without showing that
A. Yes, your Honor.[50] these items could be the subject of warrantless search and seizure. [52] Clearly, the raiding team
exceeded its authority when it seized these items.
xxx
The seizure of these items was therefore void, and unless these items are contraband per
se,[53] and they are not, they must be returned to the person from whom the raiding seized
Q. You stated that a .45 caliber pistol was seized along with one armalite rifle them. However, we do not declare that such person is the lawful owner of these items, merely that
M-16 and how many ammunition? the search and seizure warrant could not be used as basis to seize and withhold these items from
A. Forty, sir. the possessor. We thus hold that these items should be returned immediately to Dimaano.
Q. And this became the subject of your complaint with the issuing Court, with WHEREFORE, the petition for certiorari is DISMISSED. The questioned Resolutions of the
the fiscals office who charged Elizabeth Dimaano for Illegal Possession Sandiganbayan dated 18 November 1991 and 25 March 1992 in Civil Case No. 0037, remanding
of Firearms and Ammunition? the records of this case to the Ombudsman for such appropriate action as the evidence may
A. Yes, sir. warrant, and referring this case to the Commissioner of the Bureau of Internal Revenue for a
Q. Do you know what happened to that case? determination of any tax liability of respondent Elizabeth Dimaano, are AFFIRMED.
A. I think it was dismissed, sir. SO ORDERED.
Q. In the fiscals office?
A. Yes, sir.