Allado vs. Diokno

6/16/2019 SUPREME COURT REPORTS ANNOTATED VOLUME 232
192 SUPREME COURT REPORTS ANNOTATED

Allado vs. Diokno
*
G.R. No. 113630. May 5, 1994.
DIOSDADO JOSE ALLADO and ROBERTO L.

MENDOZA, petitioners, vs. HON. ROBERTO C. DIOKNO,
Presiding Judge, BR. 62, Regional Trial Court, Makati,
Metro Manila, and PRESIDENTIAL ANTI-CRIME
COMMISSION, respondents.
Criminal Law; Constitutional Law; Warrant of Arrest; A

warrant of arrest shall issue only upon probable cause to be
determined personally by the judge after examination under oath
or affirmation of the complainant and the witnesses.—Section 2,
Art. III, of the 1987 Constitution, lays down the requirements for
the issuance of a warrant of arrest, i.e., a warrant of arrest shall
issue only upon probable cause to be determined personally by the
judge after examination under oath or affirmation of the
complainant and the witnesses he may produce.
Same; Same; Same; Probable cause defined.—As early as

1915, in Buchanan v. Viuda de Esteban, this Court speaking
through Associate Justice Sherman Moreland defined probable
cause as “the existence of such facts and circumstances as would
excite the belief, in a reasonable mind, acting on the facts within
the knowledge of the prosecutor, that the person charged was
guilty of the crime for which he was prosecuted.” This definition is
still relevant today as we continue to cite it in recent cases.
Hence, probable cause for an arrest or for the issuance of a
warrant of arrest has been defined as such facts and
circumstances which would lead a reasonably discreet and
prudent man to believe that an offense has been committed by the
person sought to be arrested. And as a protection against false
prosecution and arrest, it is the knowledge of facts, actual or
apparent, strong enough to justify a reasonable man in the belief
that he has lawful grounds for arresting the accused.
Same; Same; Same; Same; Before issuing a warrant of arrest,

the judge must satisfy himself that there is sufficient proof that a
crime has been committed and that the person to be arrested is
www.central.com.ph/sfsreader/session/0000016b5ffa6b4860160069003600fb002c009e/t/?o=False 1/22
probably guilty thereof.—Accordingly, before issuing a warrant of

arrest, the judge must satisfy himself that based on the evidence
submitted there is sufficient proof that a crime has been
committed and that the person to be arrested is probably guilty
thereof. In the Order of respondent judge dated 11 February 1994,
it is expressly stated that “[t]his court after
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* FIRST DIVISION.
193
VOL. 232, MAY 5, 1994 193
Allado vs. Diokno
careful evaluation of the evidence on record, believes and rules

that probable cause exists; and therefore, a warrant of arrest
should be issued.” However, we are unable to see how respondent
judge arrived at such ruling.
Same; Same; Same; Same; Same; Respondent judge

committed grave abuse of discretion in issuing the warrant for the
arrest of petitioners.—Verily, respondent judge committed grave
abuse of discretion in issuing the warrant for the arrest of
petitioners it appearing that he did not personally examine the
evidence nor did he call for the complainant and his witnesses in
the face of their incredible accounts. Instead, he merely relied on
the certification of the prosecutors that probable cause existed.
PETITION for certiorari and prohibition to set aside a

warrant of arrest issued by the Regional Trial Court of
Makati, Metro Manila, Br. 62, Diokno, J.
The facts are stated in the opinion of the Court.
BELLOSILLO, J.:
On balance at the fulcrum once again are the intrinsic

right of the State to prosecute perceived transgressors of
the law, which can be regulated, and the innate value of
human liberty, which can hardly be weighed.
Some twelve years ago we were confronted with a
similar problem when former Senator Jovito R. Salonga
invoked before this Court his “right to life and liberty
guaranteed by the due process clause, alleging that no

prima facie case has been established to warrant
1
the filing
of an information for subversion against him.” We resolved
the issue then and sustained him. He is now back before
us, this time as counsel pleading the cause of petitioners
herein who, he claims, are in a situation far worse than his
predicament twelve (12) years ago. He postulates that no
probable cause likewise exists in this case, and what is
worse is that no bail is recommended.
This petition gives us an opportunity to revisit the
concept and
________________
1 Salonga v. Paño, G.R. No. 59524, 18 February 1985, 134 SCRA 438,
443.
194

Allado vs. Diokno
implication of probable cause, the existence of which is

necessary for the prosecutor to have an accused held for
trial and for a trial judge to issue a warrant for his arrest.
It is mandatory therefore that there be probable cause
before an information is filed and a warrant of arrest
issued. Unfortunately, however, at times a criminal case is
filed, a warrant of arrest issued and a person consequently
incarcerated on unsubstantiated allegations that only feign
probable cause.
Petitioners Diosdado Jose Allado and Roberto L.
Mendoza, alumni of the College of Law, University of the
Philippines, are partners of the Law Firm of Salonga,
Hernandez and Allado. In the practice of their profession,
and on the basis of an alleged extrajudicial confession of a
security guard, they have been accused of the heinous
crime of kidnapping with murder by the Presidential Anti-
Crime Commission (PACC) and ordered arrested without
bail by respondent judge. The focal source of the
information against petitioners is the
sworn statement dated 16 September 1993 of Security
Guard Escolastico Umbal, a dischargee of the Philippine
Constabulary, implicating them as the brains behind the
alleged kidnapping and slaying of2 one Eugene Alexander
Van Twest, a German national. In that extrajudicial
confession, Umbal claimed that he and his companions
were met by petitioners at Silahis Hotel and in exchange
for P2.5M the former undertook to apprehend Van Twest

who allegedly had an international warrant of arrest
against him. Thus, on 16 June 1992, after placing him
under surveillance for nearly a month, Umbal, Ex-
policeman Rolando Gamatero, AFPCIG Agent Roberto
Santiago and SPO2 Sergio Antonino abducted Van Twest.
They blocked his blue Nissan Pathfinder under the
Alabang overpass and forced him into their car. They
brought him to a “safe house” just behind the New Bilibid
Prisons. Umbal was tasked to watch over their quarry.
After four (4) days, Gamatero, Santiago and Antonino
returned to the “safe house” together with petitioners and
SPO2 Roger Bato, known to Umbal also as “Batok.” SPO2
Bato faked the interrogation of Van Twest, pretending it
was official, and then made him sign certain documents.
The following day, Gamatero
_______________
2 Rollo, pp. 52-54.
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VOL. 232, MAY 5, 1994 195

Allado vs. Diokno
shot Van Twest in the chest with a baby armalite, after

which Antonino stabbed him repeatedly, cut off his private
part, and later burned his cadaver into fine ashes using
gasoline and rubber tires. Umbal could not recall the exact
date when the incident happened, but he was certain it was
about a year ago.
A day after Umbal executed his extrajudicial confession,
the operatives of the PACC, armed with a search warrant
issued by Judge Roberto 3A. Barrios of the Regional Trial
Court of Manila, Br. 11, separately raided the two (2)
dwellings of Santiago, one located at No. 7 Sangley Street,
and the other, along Amalingan Street, both in Green
Heights Subdivision, Parañaque. The raiders recovered a
blue Nissan Pathfinder and assorted firearms and
ammunition and placed Santiago and his trusted aide,
Efren Madolid, under arrest. Also arrested later that day
were Antonino and Bato who were found to have in their
possession several firearms and ammunition and Van
Twest’s Cartier sunglasses.
After evaluating the pieces of evidence gathered by
PACC operatives, Sr. Supt. Panfilo Lacson, Chief of PACC
Task Force Habagat, referred the case to the Department
of Justice for the institution of criminal proceedings

against AFPCIG Agent Roberto Santiago, SPO1 Sergio
Antonino, SPO2 Roger Bato, Ex-policeman Rolando
Gamatero, Efren Madolid, and petitioners herein, Atty.
Diosdado Jose Allado and Atty. Roberto L. Mendoza, for
illegal possession of firearms and ammunition, carnapping,
kidnapping 4
for ransom with murder, and usurpation of
authority. In his letter to the State Prosecutor dated 17
September 1993, Sr. Supt. Lacson charged that—
Atty. Roberto L. Mendoza and Atty. Allado of Salonga, Hernandez

and Allado Law Offices x x x planned and conspired with other
suspects to abduct and kill the German national Alexander Van
Twest in order to eliminate him after forcing the victim to sign
several documents transferring ownership of several properties
amounting to several million pesos and caused the withdrawal of
P5M deposit from the victim’s bank account.
_______________
3 Id., pp. 55-56.

4 Id., pp. 40-42.
196

Allado vs. Diokno
Thereafter, Senior State Prosecutor Ferdinand R.

Abesamis issued a subpoena to petitioners informing them
that a complaint was filed against them by PACC TF-
Habagat, directing them to appear on 30 September 1993
at the Multi-Purpose Hall of the Department of Justice and
to submit their counter-affidavits. Attached to the
subpoena were copies of the affidavits executed by Umbal
and members 5
of the team who raided the two (2) dwellings
of Santiago.
Not satisfied merely with the affidavits attached to the
subpoena, petitioner Mendoza moved for the production of
other documents for examination and copying to enable
him to fully prepare for his 6defense and to submit an
intelligible counter-affidavit. Specifically, petitioner
Mendoza was interested in (a) the “several documents
transferring ownership of several properties amounting to
several million pesos and the withdrawal of P5M deposits
from the victim’s bank account,” as stated in the complaint;
(b) the complete records of the PACC’s investigation,
including investigations on other suspects and their
disposition, PACC’s Order of Battle for 1992 and early

1993, and, (c) such other written statements issued in the
above-entitled case,
7
and all other documents intended to be
used in this case. Petitioners likewise sought the inhibition
of the members of the panel of prosecutors, which was
created to conduct the preliminary investigation, on the
ground that they were members of the legal staff assigned
to PACC and thus could not act with impartiality.
8
In its Order of 11 October 1993, the new panel of
prosecutors composed of Senior State Prosecutor Bernelito
R. Fernandez as Chairman, with Rogelio F. Vista and
Purita M. Deynata as Members, confirmed that the motion
for inhibition of the members of the old panel as well as the
appeal to the Secretary of Justice was resolved on 8
October 1993 resulting in the creation of a new panel.
Thereafter, the new panel granted the prayer of petitioner
Mendoza for the production of additional documents
_______________
5 Id., pp. 43-45.

6 Id., pp. 60-63.
7 Motion for Production of Documents, alternatively, for Subpoena
Duces Tecum, pp. 3-4.
8 Rollo, pp. 64-65.
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VOL. 232, MAY 5, 1994 197

Allado vs. Diokno
used or intended to be used against him. Meanwhile, Task

Force Habagat, in compliance with the order, submitted
only copies of the request for verification of the firearms
seized from the accused, the result of the request for
verification, and a Philippine Times Journal article on the
case with a marginal note of President Fidel V. Ramos
addressed to the Chief of the Philippine National Police
directing the submission of a report and summary of
actions taken thereon.
Not having been provided with the requested
documents, petitioners nevertheless submitted their
respective counter-affidavits
9
denying the accusations
against them.
After a preliminary hearing where clarificatory
questions were additionally propounded, the case was
deemed submitted for resolution. But before the new panel
could resolve the case, SPO2 Bato filed a manifestation
stating that he was reconsidering

10
the earlier waiver of his
right to file counter-affidavit, and “in the greater interest
of truth, justice and fair
11
play” moved for the admission of
his counter-affidavit confessing participation in the
abduction and slaying of Van Twest and implicating
petitioners Allado and Mendoza. Sometime in January
1994, however, before petitioners could refute Bato’s
counter-affidavit, he moved to suppress it on the ground
that it was extracted through intimidation and duress.
On 3 February 1994, with the new panel failing to act on
the twin motions of SPO2 Bato, petitioners heard over the
radio that the panel had issued a resolution finding a
prima facie case against them and that an information had
already been filed in court. Upon verification with the
Department of Justice, however, petitioners were informed
that the resolution was not yet ready for release, but later
that afternoon they were able to secure a copy of12 the
information for kidnapping with murder against them and
the 15-page undated resolution under the letterhead of
PACC, signed by the panel of prosecutors, with the Head 13
of
the PACC Task Force recommending approval thereof.
________________
9 Id., pp. 69-88; 166-181.

10 Id., pp. 252-253.
11 Id., pp. 254-261.
12 Id., pp. 292-296.
13 Id., pp. 276-291.
198

Allado vs. Diokno
That same day, the information was filed before the

Regional Trial Court of Makati and raffled off to Branch 62
presided by respondent Judge Roberto C. Diokno.
On 4 February 1994, respondent judge, in response to
petitioners’ request, gave them until 8 February 1994 to
submit their opposition to the issuance
14
of a warrant of
arrest against all the accused. On 7 February 1994, 15
petitioners complied with the order of respondent judge.
The following day, 8 February 1994, petitioner Allado filed
an appeal with the Secretary of Justice seeking review and
reversal of 16 the undated resolution of the panel of
prosecutors,
17
which appeal was adopted by petitioner
Mendoza. On 11 February 1994, petitioner Allado moved
to defer the proceedings before the trial court pending 18

resolution of his appeal before the Secretary of Justice.
However, on even date, respondent judge 19issued the
assailed warrant of arrest against petitioners. Hence, on
15 February 1994, petitioners filed with us the instant
petition for certiorari and prohibition with prayer for a
temporary restraining order.
On 16 February 1994, we required respondents to
comment on the petition and set the case for hearing on 28
February 1994. After the hearing, we issued a temporary
restraining order enjoining PACC from enforcing the
warrant of arrest and respondent judge from conducting
further proceedings on the case and, instead, to elevate the
records to us. Meanwhile, on 27 February 1994, petitioners
voluntarily surrendered at the Headquarters of the Capital
Command (CAPCOM), Philippine National Police (PNP),
Camp Bagong Diwa, Bicutan, Metro Manila, and on 29
February 1994, they were released on the basis of our
temporary restraining order.
Petitioners, in their 335-page petition, inclusive of
annexes, principally contend that respondent judge acted
with grave abuse of discretion and in excess of jurisdiction
in “whimsically holding
_______________
14 Id., pp. 297-299.

15 Id., pp. 300-322.
16 Id., pp. 323-325.
17 Ibid.
18 Id., pp. 326-330.
19 Rollo, p. 333.
199
VOL. 232, MAY 5, 1994 199

Allado vs. Diokno
that there is probable cause against petitioners without

determining the admissibility of the evidence against
petitioners20
and without even stating the basis of his
findings,” and in “relying on the Resolution of the Panel
and their certification that
21
probable cause exists when the
certification is flawed.” Petitioners maintain that the
records of the preliminary investigation which respondent
judge solely relied upon failed to establish probable cause
against them to justify the issuance of the warrant of
arrest. Petitioners likewise assail22 the prosecutors’ “clear

sign of bias and impartiality (sic).”
On the other hand, the Office of the Solicitor General
argues that the determination of probable cause is a
function of the judge who is merely required to personally
appreciate certain facts to convince him that the accused
probably committed the crime charged.
Section 2, Art. III, of the 1987 Constitution, lays down
the requirements for the issuance of a warrant of arrest,
i.e., a warrant of arrest shall issue only upon probable
cause to be determined personally by the judge after
examination under oath or affirmation of the complainant
and the witnesses he may produce. 23
As early as 1915, in Buchanan v. Viuda de Esteban,
this Court speaking through Associate Justice Sherman
Moreland defined probable cause as “the existence of such
facts and circumstances as would excite the belief, in a
reasonable mind, acting on the facts within the knowledge
of the prosecutor, that the person charged was guilty of the
crime for which he was prosecuted.” This definition is still24
relevant today as we continue to cite it in recent cases.
Hence, probable cause for an arrest or for the issuance of a
warrant of arrest has been defined as such facts and
circumstances which would lead a reasonably discreet and
pru-
_______________
20 Petition for Certiorari, p. 22; Rollo, p. 23.

21 Ibid.
22 Ibid.
23 32 Phil. 33 (1915).
24 Que v. Intermediate Appellate Court, G.R. No. 66865, 13 January
1989, 169 SCRA 1989; Ponce v. Legaspi, G.R. No. 79184, 6 May 1992, 208
SCRA 377; and Albenson v. Court of Appeals, G.R. No. 88694, 11 January
1993, 217 SCRA 16.
200

Allado vs. Diokno
dent man to believe that an offense 25has been committed by

the person sought to be arrested. And as a protection
against false prosecution and arrest, it is the knowledge of
facts, actual or apparent, strong enough to justify a
reasonable man in the26belief that he has lawful grounds for
arresting the accused.
27
27
Pilapil v. Sandiganbayan, sets a standard for
determining the existence of probable cause. While it
appears in that case that we have granted the prosecutor
and the trial judge seemingly unlimited latitude in
determining the existence or absence of probable cause by
affirming the long-standing procedure that they can base
their findings merely on their personal opinion and
reasonable belief, yet, this permissiveness should not be
interpreted as giving them arbitrary powers and letting
them loose in the determination of the existence of probable
cause, a delicate legal question which can result in the
harassment and deprivation of liberty of the person sought
to be charged or arrested. There we said—
Probable cause is a reasonable ground of presumption that a

matter is, or may be, well founded, such a state of facts in the
mind of the prosecutor as would lead a person of ordinary caution
and prudence to believe, or entertain an honest or strong
suspicion, that a thing is so. The term does not mean “actual and
positive cause” nor does it import absolute certainty. It is merely
based on opinion and reasonable belief. Thus, a finding of
probable cause does not require an inquiry into whether there is
sufficient evidence to procure a conviction. It is enough that it is
believed that the act or omission complained of constitutes the
offense charged. Precisely, there is a trial for the reception of
evidence of the prosecution in support of the charge.
Whether an act was done causing undue injury to the
government and whether the same was done with manifest
partiality or evident bad faith can only be made out by proper and
sufficient testimony. Necessarily, a conclusion can be arrived
28
at
when the case has already proceeded on sufficient proof.
_______________
25 See Bernas, The Constitution of the Republic of the Philippines. A

Commentary. Vol. 1, First Ed., 1987, pp. 86-87.
26 34 Words and Phrases 15, citing Mudge v. State, 45 N.Y.S. 2d 296,
901.
27 G.R. No. 101978, 7 April 1993, 221 SCRA 349.
28 Id., pp. 360-361.
201
VOL. 232, MAY 5, 1994 201

Allado vs. Diokno
Accordingly, before issuing a warrant of arrest, the judge

must satisfy himself that based on the evidence submitted
there is sufficient proof that a crime has been committed

and that the person to be arrested is probably guilty
thereof. In the Order of respondent judge dated 11
February 1994, it is expressly stated that “[t]his court after
careful evaluation of the evidence on record, believes and
rules that probable cause exists; and therefore, a warrant
of arrest should be issued.” However, we are unable to see
how respondent judge arrived at such ruling. We have
painstakingly examined the records and we cannot find any
support for his conclusion. On the contrary, we discern a
number of reasons why we consider the evidence submitted
to be insufficient for a finding of probable cause against
petitioners.
The Presidential Anti-Crime Commission relies heavily
on the sworn statement of Security Guard Umbal who
supposedly confessed his participation in the alleged
kidnapping and murder of Van Twest. For one, there is
serious doubt on Van Twest’s reported death since the
corpus delicti has not been established, nor have his
remains been recovered. Umbal claims that Van Twest was
completely burned into ashes with the use of gasoline and
rubber tires from around29 ten o’clock in the evening to six
o’clock the next morning. This is highly improbable, if not
ridiculous. A human body cannot be pulverized into ashes
by simply burning it with the use of gasoline and rubber
tires in an open field. Even crematoria use entirely closed 30
incinerators where the corpse is subjected to intense heat.
Thereafter, the remains undergo a process where the bones
are completely ground to dust.
In the case of Van Twest, there is not even any
insinuation that earnest efforts were exerted to recover
traces of 31his remains from the scene of the alleged
cremation. Could it be that the government investigators
did go to the place of cremation but
________________
29 TSN of the Preliminary Investigation conducted by the State

Prosecutors, 26 November 1993, pp. 34-35; Rollo, pp. 218-219.
30 See Abbey Land v. County of San Mateo, 167 Cal 434, 139 P 1068.
31 TSN of the Hearing before the First Division, Supreme Court, 28
February 1994, pp. 21-23.
202

Allado vs. Diokno
could not find any? Or could it be that they did not go at all
because they knew that there would not be any as no
burning ever took place? To allege then that the body of
Van Twest was completely burned to ashes in an open field
with the use merely of tires and gasoline is a tale too tall to
gulp.
Strangely, if not awkwardly, after Van Twest’s reported
abduction on 16 June 1992 which culminated in his
decimation by cremation, his counsel continued to
represent him before judicial and quasi-judicial
proceedings. Thus on 31 July 1992, his counsel filed in his
behalf a petition for review before this Court, docketed as
G.R. No. 106253, and on 18 March 1993, a memorandum
before the Securities and Exchange Commission in SEC
Case No. 3896. On 26 November 1993, during the
preliminary investigation conducted by the panel of
prosecutors, counsel again manifested that “even then and
even as of this time, I stated in my counter-affidavit that
until the matter of death is to be established in the proper
proceedings, I shall continue to pursue my duties 32
and
responsibilities as counsel for Mr. Van Twest.” Hence,
even Asst. Solicitor General Estoesta believes33that counsel
of Van Twest doubted the latter’s death. Obviously,
counsel himself does not believe that his client is in fact
already dead otherwise his obligation to his client would
have ceased except to comply with his duly “to inform the
court promptly of such death x x x and to give the name
and residence of his executor,
34
administrator, guardian or
other legal representative,” which he did not.
Under the circumstances, we cannot discount
petitioners’ theory that the supposed death of Van Twest
who is reportedly an international fugitive from justice, a
fact substantiated by petitioners and never refuted by
PACC, is a likely story to stop the international manhunt
for his arrest. In this regard, 35we are reminded of the
leading case of U.S. v. Samarin decided ninety-two years
ago where this Court ruled that when the supposed
_______________
32 Rollo, pp. 189-190.

33 TSN of the Hearing before the First Division, Supreme Court, 28
February 1994, p. 18.
34 Sec. 16, Rule 3, of the Revised Rules of Court.
35 1 Phil. 239 (1902).
203
VOL. 232, MAY 5, 1994 203

Allado vs. Diokno
victim is wholly unknown, his body not found, and there is

but one witness who testifies to the killing, the corpus
delicti is not sufficiently proved.
Then, the extrajudicial statement of Umbal suffers from
material inconsistencies. In his sworn statement, he said
that he together with his cohorts was met by petitioners in
Silahis36Hotel where they hatched the plan to abduct Van
Twest. However, during the preliminary investigation, he
stated that he was not part of the actual meeting as he only
waited outside in the car for his companions 37
who
supposedly discussed the plan inside Silahis Hotel.
Umbal also said that petitioners arrived with Bato and
conducted a mock interrogation of Van Twest who
thereafter38 signed various documents upon being compelled
to do so. During the clarificatory questioning, however,
Umbal changed his story and said that he was asked to go
outside of the “safe house” at the time Van Twest was
interrogated and thus did not see if Van Twest indeed
signed certain documents. Why Umbal had to be sent out of
the “safe house,” no explanation was offered. Did these
documents really exist? Or could the non-existence of these
documents be the reason why PACC was not able to comply
with the order of the prosecutors to produce them during
the preliminary investigation? And then, what happened to
the P2.5M that was supposedly offered by petitioners in
exchange for the abduction of Van Twest? These and more
remain unanswered.
Most perplexing however is that while the whole
investigation was supposedly triggered off by Umbal’s
confession of 16 September 1993, the application of the
PACC operatives for a search warrant to be served in the
two (2) dwellings of Santiago was filed and granted by the
Regional Trial Court of Manila on 15 September 1993, a
day before Umbal executed his sworn statement. In
support of the application, the PACC agents claimed that
Umbal had been in their custody since 10 September 1993.
Significantly, although he was said to be already under
their
________________
36 Sworn Statement of Escolastico Umbal, p. 1; Rollo, p. 52.

37 TSN of Preliminary Investigation conducted by State Prosecutors, 26
November 1993, pp. 38-39; Rollo, pp. 222-223.
38 Sworn Statement of Escolastico Umbal, p. 2; Rollo, p. 53.
204

Allado vs. Diokno
custody, Umbal claims he was never interrogated until 16

September 1993 and only at the security barracks 39
of Valle
Verde V, Pasig, where he was a security guard.
The alleged counter-affidavit of SPO2 Bato, which the
panel of prosecutors also considered in filing the charges
against petitioners, can hardly be credited as its probative
value has tremendously waned. The records show that the
alleged counter-affidavit, which is self-incriminating, was
filed after the panel had considered the case submitted for
resolution. And before petitioners could refute this counter-
affidavit, Bato moved to suppress the same on the ground
that it was extracted through duress and intimidation.
For sure, the credibility of Umbal is badly battered.
Certainly, his bare allegations, even if the State invokes its
inherent right to prosecute, are insufficient to justify
sending two lawyers to jail, or anybody for that matter.
More importantly, the PACC operatives who applied for a
warrant to search the dwellings of Santiago never
implicated petitioners. In fact they claimed that according
to Umbal, it was Santiago, 40and not petitioners, who
masterminded the whole affair. While there may be bits of
evidence against petitioners’ co-accused, i.e., referring to
those seized from the dwellings of Santiago, these do not in
the least prove petitioners’ complicity in the crime charged.
Based on the evidence thus far submitted there is nothing
indeed, much less is there probable cause, to incriminate
petitioners. For them to stand trial and be deprived in the
meantime of their liberty, however brief, the law
appropriately exacts much more to sustain a warrant for
their arrest—facts and circumstances strong enough in
themselves to support the belief that they are guilty of a
crime that in fact happened. Quite obviously, this has not
been met.
Verily, respondent judge committed grave abuse of
discretion in issuing the warrant for the arrest of
petitioners it appearing
_______________
39 TSN of Preliminary Investigation conducted by State Prosecutors, 26

November 1993, pp. 48-49; Rollo, pp. 232-233.
40 TSN of the Proceedings for the application of search warrant before

Judge Roberto Barrios, 15 September 1993, pp. 16, 21; Rollo, pp. 104, 109.
205
VOL. 232, MAY 5, 1994 205

Allado vs. Diokno
that he did not personally examine the evidence nor did he

call for the complainant and his witnesses in the face of
their incredible accounts. Instead, he merely relied on the
certification of the prosecutors that probable cause existed.
For, otherwise, he would have found out that the evidence
thus far presented was utterly insufficient to warrant the
arrest of petitioners. In this regard, we restate the
procedure we outlined in various cases we have already
decided. 41
In Soliven v. Makasiar, we said that the judge (a) shall
personally evaluate the report and the supporting
documents submitted by the fiscal regarding the existence
of probable cause and, on the basis thereof, issue a warrant
of arrest; or, (b) if on the basis thereof he finds no probable
cause, may disregard the fiscal’s report and require the
submission of supporting affidavits of witnesses to aid him
in arriving at a conclusion on the existence of probable
cause. 42
In People v. Inting, we emphasized the important
features of the constitutional mandate; (a) The
determination of probable cause is a function of the judge;
it is not for the provincial fiscal or prosecutor to ascertain.
Only the judge and the judge alone makes this
determination; (b) The preliminary inquiry made by a
prosecutor does not bind the judge. It merely assists him in
making the determination of probable cause. The judge
does not have to follow what the prosecutor presents to
him. By itself, the prosecutor’s certification of probable
cause is ineffectual. It is the report, the affidavits, the
transcript of stenographic notes (if any), and all other
supporting documents behind the prosecutor’s certification
which are material in assisting the judge in his
determination of probable cause; and, (c) Judges and
prosecutors alike should distinguish the preliminary
inquiry which determines probable cause for the issuance
of a warrant of arrest from the preliminary investigation
proper which ascertains whether the offender should be
held for trial or released. Even if the two inquiries be
conducted in the course of one and the same proceeding,
there should be no confusion about their objectives. The
_______________
41 G.R. Nos. 82585, 82827 and 83979, 14 November 1988, 167 SCRA
393.
42 G.R. No. 88919, 25 July 1990, 187 SCRA 788.
206

Allado vs. Diokno
determination of probable cause for the warrant is made by

the judge. The preliminary investigation proper—whether
or not there is reasonable ground to believe that the
accused is guilty of the offense charged and therefore,
whether or not he should be subjected to the expense,
rigors and embarrassment of trial—is a function of the
prosecutor. 43
In Lim v. Felix, where we reiterated Soliven v.
Makasiar and People v. Inting, we said—
[T]he Judge does not have to personally examine the complainant

and his witnesses. The Prosecutor can perform the same functions
as a commissioner for the taking of the evidence. However, there
should be a report and necessary documents supporting the
Fiscal’s bare certification. All these should be before the Judge.
The extent of the Judge’s personal examination of the report
and its annexes depends on the circumstances of each case. We
cannot determine beforehand how cursory or exhaustive the
Judge’s examination should be. The Judge has to exercise sound
discretion for, after all, the personal determination is vested in
the Judge by the Constitution. It can be as brief or as detailed as
the circumstances of each case require. To be sure, the judge must
go beyond the Prosecutor’s certification and investigation report
whenever necessary. He should call for the complainant and
witnesses themselves to answer the court’s probing questions
when the circumstances of the case so require.
Clearly, probable cause may not be established simply by

showing that a trial judge subjectively believes that he has
good grounds for his action. Good faith is not enough. If
subjective good faith alone were the test, the constitutional
protection would be demeaned and the people would be
“secure in their persons, houses, papers
44
and effects” only in
the fallible discretion of the judge. On the contrary, the
probable cause test is an objective one, for in order that
there be probable cause the facts and circumstances must
be such as would warrant a belief by a reasonably discreet
and prudent man that the accused is guilty of the crime
45
45
which has just been committed. This, as we said, is the
standard. Hence, if upon the filing of the information in
court
________________
43 G.R. Nos. 92466-69, 19 February 1991, 187 SCRA 292.

44 Beck v. Ohio, 379 U.S. 89, 85 S.Ct. 223, 13 L.Ed. 2d. 142 (1964).
45 Terry v. Ohio, 392 U.S. 1, 88 S.Ct. 1868, 20 L.Ed. 2d. 889 (1968).
207
VOL. 232, MAY 5, 1994 207

Allado vs. Diokno
the trial judge, after reviewing the information and the

documents attached thereto, finds that no probable cause
exists must either call for the complainant and the
witnesses themselves or simply dismiss the case. There is
no reason to hold the accused for trial and further expose
him to an open and public accusation of the crime when no
probable cause exists.
But then, it appears in the instant case that the
prosecutors have similarly misappropriated, if not abused,
their discretion. If they really believed that petitioners
were probably guilty, they should have armed themselves
with facts and circumstances in support of that belief; for
mere belief is not enough. They should have presented
sufficient and credible evidence to demonstrate the
existence of probable cause. For the prosecuting officer “is
the representative not of an ordinary party to a
controversy, but of a sovereignty whose obligation to govern
impartially is as compelling as its obligation to govern all;
and whose interest, therefore, in a criminal prosecution is
not that it shall win a case, but that justice shall be done.
As such, he is in a peculiar and very definite sense the
servant of the law, the twofold aim of which is that guilt
shall not escape or innocence suffer. He may prosecute with
earnestness and vigor—indeed, he should do so. But, while
he may strike hard blows, he is not at liberty to strike foul
ones. It is as much his duty to refrain from improper
methods calculated to produce a wrongful conviction as it46 is
to use every legitimate means to bring about a just one.”
In the case at bench, the undue haste in the filing of the
information and the inordinate interest of the government
cannot be ignored. From the gathering of evidence until the
termination of the preliminary investigation, it appears
that the state prosecutors were overly eager to file the case
and secure a warrant for the arrest of the accused without

bail and their consequent detention. Umbal’s sworn
statement is laden with inconsistencies and
improbabilities. Bato’s counter-affidavit was considered
without giving petitioners the opportunity to refute the
same. The PACC which gathered the evidence appears to
have had a hand in the determination of probable cause in
the
_______________
46 Suarez v. Judge Platon, 69 Phil. 556, 564-565 (1940), citing Mr.

Justice Sutherland of the Supreme Court of the United States.
208

Allado vs. Diokno
preliminary inquiry as the undated resolution of the panel

not only bears the letterhead of PACC but was also
recommended for approval by the head of the PACC Task
Force. Then petitioners were given the runaround in
securing a copy of the resolution and the information
against them.
Indeed, the task of ridding society of criminals and
misfits and sending them to jail in the hope that they will
in the future reform and be productive members of the
community rests both on the judiciousness of judges and
the prudence of prosecutors. And, whether it is a
preliminary investigation by the prosecutor, which
ascertains if the respondent should be held for trial, or a
preliminary inquiry by the trial judge which determines if
an arrest warrant should issue, the bottomline is that there
is a standard in the determination of the existence of
probable cause, i.e., there should be facts and
circumstances sufficiently strong in themselves to warrant
a prudent and cautious man to believe that the accused is
guilty of the crime with which he is charged. Judges and
prosecutors are not off on a frolic of their own, but rather
engaged in a delicate legal duty defined by law and
jurisprudence. 47
In this instance, Salonga v. Paño finds application—
The purpose of a preliminary investigation is to secure the

innocent against hasty, malicious and oppressive prosecution, and
to protect him from an open and public accusation of crime, from
the trouble, expense and anxiety of a public trial, and also to
protect the state from useless and expensive trial (Trocio v.

Manta, 118 SCRA 241, citing Hashim v. Boncan, 71 Phil. 216).
The right to a preliminary investigation is a statutory grant, and
to withhold it would be to transgress constitutional due process
(see People v. Oandasa, 25 SCRA 277). However, in order to
satisfy the due process clause it is not enough that the preliminary
investigation is conducted in the sense of making sure that the
transgressor shall not escape with impunity. A preliminary
investigation serves not only for the purposes of the State. More
importantly, it is a part of the guarantees of freedom and fair play
which are birthrights of all who live in the country. It is therefore
imperative upon the fiscal or the judge as the case may be, to
relieve the accused from the pain of going thru a trial once it is
ascertained that the evidence is insufficient to sustain a prima
facie case or that no probable cause exists
_______________
47 See Note 1.
209
VOL. 232, MAY 5, 1994 209

Allado vs. Diokno
to form a sufficient belief as to the guilt of the accused (italics

supplied).
The facts of this case are fatefully distressing as they

showcase the seeming immensity of government power
which when unchecked becomes tyrannical and oppressive.
Hence the Constitution, particularly the Bill of Rights,
defines the limits beyond which lie unsanctioned state
actions. But on occasion, for one reason or another, the
State transcends this parameter. In consequence,
individual liberty unnecessarily suffers. The case before us,
if uncurbed, can be illustrative of a dismal trend. Needless
injury of the sort inflicted by government agents is not
reflective of responsible government. Judges and law
enforcers are not, by reason of their high and prestigious
office, relieved of the common obligation to avoid
deliberately inflicting unnecessary injury.
The sovereign power has the inherent right to protect
itself and its people from vicious acts which endanger the
proper administration of justice; hence, the State has every
right to prosecute and punish violators of the law. This is
essential for its self-preservation, nay, its very existence.
But this does not confer a license for pointless assaults on
its citizens. The right of the State to prosecute is not a carte
blanche for government agents to defy and disregard the

rights of its citizens under the Constitution. Confinement,
regardless of duration, is too high a price to pay for reckless
and impulsive prosecution. Hence, even if we apply in this
case the “multifactor balancing test” which requires the
officer to weigh the manner and intensity of the
interference on the right of the people, the gravity of the
crime committed and the circumstances attending the
incident, still we cannot 48
see probable cause to order the
detention of petitioners.
The purpose of the Bill of Rights is to protect the people
against arbitrary and discriminatory use of political power.
This bundle of rights guarantees the preservation of our
natural rights which include personal liberty and security
against inva-
________________
48 See Alschuler, Bright Line Fever and the Fourth Amendment, 45 U.

Pitt. L. Rev. 227, 243-56 (1984); Grano, Probable Cause and Common
Sense: A Reply to the Critics of Illinois v. Gates, 17 U. Mich. J. L. Ref. 465,
501-06 (1984).
210

Allado vs. Diokno
sion by the government or any of its branches or

instrumentalities. Certainly, in the hierarchy of rights, the
Bill of Rights takes precedence over the right of the State
to prosecute, and when weighed against each other, the
scales of justice tilt towards the former. Thus, relief may be
availed of to stop the purported enforcement of criminal
law where it is necessary to provide for an orderly
administration of justice, to prevent the use of the strong
arm of the law in an oppressive and vindictive manner, 49
and
to afford adequate protection to constitutional rights.
Perhaps, this case would not have reached this Court if
petitioners were ordinary people submissive to the dictates
of government. They would have been illegally arrested
and detained without bail. Then we would not have the
opportunity to rectify the injustice. Fortunately, the victims
of injustice are lawyers who are vigilant of their rights,
who fight for their liberty and freedom not otherwise
available to those who cower in fear and subjection.
Let this then be a constant reminder to judges,
prosecutors and other government agents tasked with the
enforcement of the law that in the performance of their

duties they must act with circumspection, lest their
thoughtless ways, methods and practices cause a disservice
to their office and maim their countrymen they are sworn
to serve and protect. We thus caution government agents,
particularly the law enforcers, to be more prudent in the
prosecution of cases and not to be oblivious of human rights
protected by the fundamental law. While we greatly
applaud their determined efforts to weed society of felons,
let not their impetuous eagerness violate constitutional
precepts which circumscribe the structure of a civilized
community.
WHEREFORE, the petition for certiorari and
prohibition is GRANTED. The temporary restraining order
we issued on 28 February 1994 in favor of petitioners, Atty.
Diosdado Jose Allado and Atty. Roberto L. Mendoza, is
made permanent. The warrant of arrest issued against
them is SET ASIDE and respondent Judge Roberto C.
Diokno is ENJOINED from proceeding any further against
herein petitioners in Crim. Case No. 94-1757 of
________________
49 Hernandez v. Albano, No. L-19272, 25 January 1967, 19 SCRA 95.
211
VOL. 232, MAY 5, 1994 211

Allado vs. Diokno
the Regional Trial Court of Makati.

SO ORDERED.
Cruz (Chairman), Davide, Jr., Quiason and

Kapunan, JJ., concur.
Petition granted; Assailed warrant of arrest set aside.
Note.—RTC Judges still have the power to make a

preliminary examination for the purpose of determining
whether probable cause exists to justify the issuance of a
warrant of arrest (People vs. Inting, 187 SCRA 788).
——o0o——
212
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6/16/2019 SUPREME COURT REPORTS ANNOTATED VOLUME 232

192 SUPREME COURT REPORTS ANNOTATED

DIOSDADO JOSE ALLADO and ROBERTO L.

Criminal Law; Constitutional Law; Warrant of Arrest; A

Same; Same; Same; Probable cause defined.—As early as

Same; Same; Same; Same; Before issuing a warrant of arrest,

probably guilty thereof.—Accordingly, before issuing a warrant of

VOL. 232, MAY 5, 1994 193

Allado vs. Diokno

careful evaluation of the evidence on record, believes and rules

Same; Same; Same; Same; Same; Respondent judge

PETITION for certiorari and prohibition to set aside a

The facts are stated in the opinion of the Court.

On balance at the fulcrum once again are the intrinsic

guaranteed by the due process clause, alleging that no

194 SUPREME COURT REPORTS ANNOTATED

implication of probable cause, the existence of which is

for P2.5M the former undertook to apprehend Van Twest

2 Rollo, pp. 52-54.

VOL. 232, MAY 5, 1994 195

shot Van Twest in the chest with a baby armalite, after

of Justice for the institution of criminal proceedings

Atty. Roberto L. Mendoza and Atty. Allado of Salonga, Hernandez

3 Id., pp. 55-56.

196 SUPREME COURT REPORTS ANNOTATED

Thereafter, Senior State Prosecutor Ferdinand R.

disposition, PACC’s Order of Battle for 1992 and early

5 Id., pp. 43-45.

VOL. 232, MAY 5, 1994 197

used or intended to be used against him. Meanwhile, Task

stating that he was reconsidering

9 Id., pp. 69-88; 166-181.

198 SUPREME COURT REPORTS ANNOTATED

That same day, the information was filed before the

to defer the proceedings before the trial court pending 18

14 Id., pp. 297-299.

VOL. 232, MAY 5, 1994 199

that there is probable cause against petitioners without

arrest. Petitioners likewise assail22 the prosecutors’ “clear

20 Petition for Certiorari, p. 22; Rollo, p. 23.

200 SUPREME COURT REPORTS ANNOTATED

dent man to believe that an offense 25has been committed by

Probable cause is a reasonable ground of presumption that a

25 See Bernas, The Constitution of the Republic of the Philippines. A

VOL. 232, MAY 5, 1994 201

Accordingly, before issuing a warrant of arrest, the judge

there is sufficient proof that a crime has been committed

29 TSN of the Preliminary Investigation conducted by the State

202 SUPREME COURT REPORTS ANNOTATED

32 Rollo, pp. 189-190.

VOL. 232, MAY 5, 1994 203

Allado vs. Diokno

victim is wholly unknown, his body not found, and there is

36 Sworn Statement of Escolastico Umbal, p. 1; Rollo, p. 52.

204 SUPREME COURT REPORTS ANNOTATED

custody, Umbal claims he was never interrogated until 16

39 TSN of Preliminary Investigation conducted by State Prosecutors, 26

40 TSN of the Proceedings for the application of search warrant before