Archive for 2011


CASE 2011-0218: MARITES E. FREEMAN VS. ATTY. ZENAIDA REYES (A.C. NO. 6246, 15 NOVEMBER 2011, PER CURIAM) SUBJECT: DISBARMENT; DUTY TO ACCOUNT FOR MONEYS RECEIVED FROM CLIENT; ADMIN CASE AGAINST LAWYERS SUI GENERIS; RETURNS EXPECTED FROM LAWYERING; FIDUCIARY RELATION BETWEEN CLIENT AND LAWYER. (BRIEF TITLE: FREEMAN VS. ATTY. REYES)

 

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DISPOSITIVE:

        WHEREFORE, respondent Atty. Zenaida P. Reyes is found guilty of gross misconduct and DISBARRED from the practice of law.  Let her name be stricken off the Roll of Attorneys.  This Decision is immediately executory.

        Let all the courts, through the Office of the Court Administrator, Integrated Bar of thePhilippines, and the Office of the Bar Confidant, be notified of this Decision and be it duly recorded in the personal file of the respondent. 

        Respondent is ORDERED to turn over to complainant Marites E. Freeman the proceeds of the insurance policies remitted to her by Lincoln Financial Group, in the amount of £10,489.57, and Eagle Star Life Assurance Company Limited, £471.06, or in the total amount of £10,960.63, which is approximately equivalent to P700,000.00, pursuant to the prevailing exchange rate at the time of the subject transaction.  

        SO ORDERED.

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SUBJECTS/DOCTRINES/DIGEST:

 

 

SC FOUND THAT  ATTY. REYES RECEIVED MONIES FROM HER CLIENT FOR SECURING INSURANCE CLAIMS OF CLIENT’S DECEASED HUSBAND. SHE FAILED TO PRESENT AN ACCOUNTING OF THE MONIES RECEIVED. SHE RECEIVED THE INSURANCE PROCEEDS EQUIVALENT TO P700,000.00 BUT FAILED TO REMIT THEM TO HER CLIENT.  SHE FALSIFIED AN SPA AUTHORIZING HER TO RECEIVE THE INSURANCE PROCEEDS. SHE RECEIVED MONEY FOR A TRIP TO UK TO PURSUE THE INSURANCE CLAIMS OF CLIENT BUT HER TRIP TO UK WAS ACTUALLY TO ATTEND AN INTERNATIONAL CONVENTION. WHAT IS THE APPROPRIATE SANCTION?

 

DISBARMENT.

The Court agrees with the observation of the Investigating Commissioner that complainant had sufficiently substantiated the charge of gross dishonesty against respondent, for having appropriated the insurance proceeds of the complainant’s deceased husband, and the recommendation of the IBP Board of Governors that respondent should be disbarred.

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WHAT IS THE OBJECT OF DISBARMENT?

 

 

TO SAFEGUARD THE ADMINISTRATION OF JUSTICE. NOT SO MUCH TO PUNISH THE LAWYER.

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HOW IS ADMINISTRATION OF JUSTICE SAFEGUARDED?

 

 

–         BY PROTECTING THE COURT AND THE PUBLIC FROM THE MISCONDUCT OF OFFICERS OF THE COURT;

 

 

–         BY REMOVING  FROM THE PROFESSION OF LAW PERSONS WHOSE DISREGARD FOR THEIR OATH OF OFFICE HAVE PROVED THEM UNFIT TO CONTINUE DISCHARGING THE TRUST REPOSED IN THEM AS MEMBERS OF THE BAR.[1][33] 

        The object of a disbarment proceeding is not so much to punish the individual attorney himself, as to safeguard the administration of justice by protecting the court and the public from the misconduct of officers of the court, and to remove from the profession of law persons whose disregard for their oath of office have proved them unfit to continue discharging the trust reposed in them as members of the bar.[2][33] 

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WHAT IS THE NATURE OF A DISCIPLINARY PROCEEDING AGAINST A LAWYER.

 

 

IT IS SUI GENERIS. IT IS NOT A CRIMINAL PROCEEDING NOR A CIVIL PROCEEDING. IT IS NOT CRIMINAL BECAUSE IT IS NOT INTENDED TO PUNISH. IT IS NOT CIVIL BECAUSE IT IS NOT INTENDED TO AWARD DAMAGES. THERE IS NO PROSECUTOR NOR PLAINTIFF.

 

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WHAT IS THE REAL QUESTION TO BE DETERMINED IN SUCH PROCEEDING:

 

WHETHER OR NOT THE ATTORNEY IS STILL FIT TO BE ALLOWED THE PRIVILEGES AS SUCH.  THE COURT MERELY CALLS UPON THE LAWYER TO ACCOUNT FOR HIS ACTUATIONS. TRIAL IS NOT NECESSARY.

        A disciplinary proceeding against a lawyer is sui generis.  Neither purely civil nor purely criminal, it does not involve a trial of an action or a suit, but rather an investigation by the Court into the conduct of one of its officers.  Not being intended to inflict punishment, it is in no sense a criminal prosecution.  Accordingly, there is neither a plaintiff nor a prosecutor therein.  It may be initiated by the Court motu proprio.  Public interest is its primary objective, and the real question for determination is whether or not the attorney is still fit to be allowed the privileges as such.  Hence, in the exercise of its disciplinary powers, the Court merely calls upon a member of the Bar to account for his actuations as an officer of the Court, with the end in view of preserving the purity of the legal profession and the proper and honest administration of justice, by purging the profession of members who, by their misconduct, have proved themselves no longer worthy to be entrusted with the duties and responsibilities pertaining to the office of an attorney.[3][34]

        Being a sui generis proceeding, the main disposition of this Court is the determination of the respondent’s administrative liability.  This does not include the grant of affirmative reliefs, such as moral and exemplary damages as prayed for by the complainant, which may very well be the subject of a separate civil suit for damages arising from the respondent’s wrongful acts, to be filed in the regular courts.

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ATTY. REYES RECEIVED P167,000.00 FROM THE CLIENT FOR SPECIFIC PURPOSES. WHAT WAS HER DUTY IN CONNECTION WITH SUCH MONEY?

 

SHE SHOULD HAVE MADE  AN ACCOUNTING OF THE MONEY. SPECIFICALLY, RULE 16.01 STATES THAT A LAWYER SHALL ACCOUNT FOR ALL MONEY OR PROPERTY COLLECTED OR RECEIVED FOR OR FROM THE CLIENT, AND RULE 16.03 THEREOF REQUIRES THAT A LAWYER SHALL DELIVER THE FUNDS AND PROPERTY OF A CLIENT WHEN DUE OR UPON DEMAND. 

        Be that as it may, assuming that respondent acted within the scope of her authority to represent the complainant in pursuing the insurance claims, she should never deviate from the benchmarks set by Canon 16 of the Code of Professional Responsibility which mandates that a lawyer shall hold in trust all moneys and properties of his client that may come into his possession.  Specifically, Rule 16.01 states that a lawyer shall account for all money or property collected or received for or from the client, and Rule 16.03 thereof requires that a lawyer shall deliver the funds and property of a client when due or upon demand. 

        When a lawyer receives money from the client for a particular purpose, the lawyer is bound to render an accounting to the client showing that the money was spent for a particular purpose.  And if he does not use the money for the intended purpose, the lawyer must immediately return the money to his client.[4][39]  In the present case, the cash/check voucher and the temporary receipts issued by respondent, with the letterhead of her law firm, Z.P. Reyes Law Office, indubitably showed that she received the total amount of P167,000.00[5][40] from the complainant, in connection with the handling of the latter’s case.  Respondent admitted having received money from the complainant, but claimed that the total amount of P120,000.00[6][41] she received was in accordance with their agreement.  Nowhere was it shown that respondent rendered an accounting or, at least, apprised the complainant of the actual expenses incurred.  This leaves a quandary as to the discrepancy in the actual amount that respondent should receive, supposedly pursuant to an agreement of engaging respondent to be her counsel, as there was absence of a formal contract of legal services. 

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ATTY. REYES ASKED P43,000.00 AS GREASE MONEY OR LAGAY. DOES THIS MAKE HER LIABLE ADMINISTRATIVELY EVEN IF IT IS CUSTOMARY?

 

 

YES. RULE 1.01 OF CANON 1 OF THE CODE OF PROFESSIONAL RESPONSIBILITY  STATES THAT A LAWYER SHALL NOT ENGAGE IN UNLAWFUL, DISHONEST, IMMORAL OR DECEITFUL CONDUCT.   

 

        Further, on December 4, 1998, complainant gave P50,000.00 to the respondent for the purpose of assisting her in claiming the insurance proceeds; however, per Application for United Kingdom Entry Clearance,[7][42] dated December 8, 1998, it showed that respondent’s primary purpose in traveling to London was to attend the International Law Conference in Russell Square, London.  It is appalling that respondent had the gall to take advantage of the benevolence of the complainant, then grieving for the loss of her husband, and mislead her into believing that she needed to go to London to assist in recovering the proceeds of the insurance policies.  Worse, respondent even inculcated in the mind of the complainant that she had to adhere to the nefarious culture of giving “grease money” or lagay, in the total amount of P43,000.00,[8][43] to the British Embassy personnel, as if it was an ordinary occurrence in the normal course of conducting official business transactions, as a means to expedite the visa applications.  This runs afoul the dictum in Rule 1.01 of Canon 1 of the Code of Professional Responsibility which states that a lawyer shall not engage in unlawful, dishonest, immoral or deceitful conduct.   

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AN ESTAFA CASE FILED AGAINST ATTY. REYES BY THE COMPLAINANT FOR HER FAILURE TO ACCOUNT FOR MONEYS WAS WITHDRAWN FOR LACK OF EVIDENCE. DOES THIS EXONERATE HER ADMININSTRATIVELY?

 

 

NO. A CRIMINAL CASE IS DIFFERENT FROM AN ADMINISTRATIVE CASE. THE DISMISSAL OF A CRIMINAL CASE DOES NOT PRECLUDE THE CONTINUANCE OF A SEPARATE AND INDEPENDENT ACTION FOR ADMINISTRATIVE LIABILITY, AS THE WEIGHT OF EVIDENCE NECESSARY TO ESTABLISH THE CULPABILITY IS MERELY SUBSTANTIAL EVIDENCE.

        A criminal case is different from an administrative case, and each must be disposed of according to the facts and the law applicable to each case.[9][47]  Section 5, in relation to Sections 1[10][48] and 2,[11][49] Rule 133, Rules of Court states that in administrative cases, only substantial evidence is required, not proof beyond reasonable doubt as in criminal cases, or preponderance of evidence as in civil cases.  Substantial evidence is that amount of relevant evidence which a reasonable mind might accept as adequate to justify a conclusion.  Applying the rule to the present case, the dismissal of a criminal case does not preclude the continuance of a separate and independent action for administrative liability, as the weight of evidence necessary to establish the culpability is merely substantial evidence.  Respondent’s defense that the criminal complaint for estafa against her was already dismissed is of no consequence.  An administrative case can proceed independently, even if there was a full-blown trial wherein, based on both prosecution and defense evidence, the trial court eventually rendered a judgment of acquittal, on the ground either that the prosecution failed to prove the respondent’s guilt beyond reasonable doubt, or that no crime was committed.  More so, in the present administrative case, wherein the ground for the dismissal of the criminal case was because the trial court granted the prosecution’s motion to withdraw the information and, a fortiori, dismissed the case for insufficiency of evidence.                                                                                                           

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SUPPOSE A LAWYER FAILS TO ACCOUNT FOR MONEYS GIVEN TO HIM. WHAT IS THE PRESUMPTION?

 

 

THE PRESUMPTION IS THAT HE MISAPPROPRIATED THE MONEY. A LAWYER’S FAILURE TO RETURN UPON DEMAND THE FUNDS OR PROPERTY HELD BY HIM ON BEHALF OF HIS CLIENT GIVES RISE TO THE PRESUMPTION THAT HE HAS APPROPRIATED THE SAME FOR HIS OWN USE TO THE PREJUDICE OF, AND IN VIOLATION OF THE TRUST REPOSED IN HIM BY, HIS CLIENT.

 

 

WHY?

 

 

BECAUSE THE RELATION BETWEEN ATTORNEY AND CLIENT IS HIGHLY FIDUCIARY IN NATURE.

        In Velez v. De Vera,[12][50] the Court ruled that the relation between attorney and client is highly fiduciary in nature.  Being such, it requires utmost good faith, loyalty, fidelity, and disinterestedness on the part of the attorney.  Its fiduciary nature is intended for the protection of the client.  The Canon of Professional Ethics provides that the lawyer should refrain from any action whereby for his personal benefit or gain, he abuses or takes advantage of the confidence reposed in him by his client.  Money of the client or collected for the client, or other trust property coming into the possession of the lawyer, should be reported and accounted for promptly and should not, under any circumstances, be commingled with his own or be used by him.  Consequently, a lawyer’s failure to return upon demand the funds or property held by him on behalf of his client gives rise to the presumption that he has appropriated the same for his own use to the prejudice of, and in violation of the trust reposed in him by, his client.  It is a gross violation of general morality as well as of professional ethics; it impairs the public confidence in the legal profession and deserves punishment.  Lawyers who misappropriate the funds entrusted to them are in gross violation of professional ethics and are guilty of betrayal of public confidence in the legal profession. Those who are guilty of such infraction may be disbarred or suspended indefinitely from the practice of law.[13][51]  Indeed, lawyering is not a business.  It is a profession in which duty to public service, not money, is the primary consideration.[14][52]

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GIVE EXAMPLES OF CASES WHERE THE COURT STRIPPED LAWYERS OF THE PRIVILEGE TO PRACTICE THEIR PROFESSION FOR BREACH OF TRUST PERTAINING TO CLIENT’S MONEYS?

 

 

AS FOLLOWS:

In Manzano v. Soriano,[15][53] therein respondent, found guilty of grave misconduct (misappropriating the funds belonging to his client) and malpractice, represented therein complainant in a collection suit, but failed to turn over the amount of P50,000.00 as stipulated in their agreement and, to conceal the misdeed, executed a simulated deed of sale, with himself as the vendor and, at the same time, the notary public. 

In Lemoine v. Balon, Jr.,[16][54] therein respondent, found guilty of malpractice, deceit, and gross misconduct, received the check corresponding to his client’s insurance claim, falsified the check and made it payable to himself, encashed the same, and appropriated the proceeds. 

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WHAT ARE EXPECTED RETURNS OF LAW PRACTICE?

 

 

SIMPLE REWARDS FOR A JOB DONE OR SERVICE RENDERED.

 

 

NOT PROFITS BECAUSE LAW ADVOCACY IS NOT CAPITAL WHICH YIELDS PROFITS.

        Law advocacy, it has been stressed, is not capital that yields profits.  The returns it births are simple rewards for a job done or service rendered.  It is a calling that, unlike mercantile pursuits which enjoy a greater deal of freedom from government interference, is impressed with public interest, for which it is subject to State regulation.[17][55]  Respondent’s repeated reprehensible acts of employing chicanery and unbecoming conduct to conceal her web of lies, to the extent of milking complainant’s finances dry, and deceitfully arrogating upon herself the insurance proceeds that should rightfully belong to complainant, in the guise of rendering legitimate legal services, clearly transgressed the norms of honesty and integrity required in the practice of law.  This being so, respondent should be purged from the privilege of exercising the noble legal profession.   

 

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Republic of thePhilippines

Supreme Court

Manila

 

EN BANC

 

 

MARITES E. FREEMAN,                                                                                                                      Complainant,  

 

 

 

 

 

 

 

 

versus

 

 

 

 

 

 

 

 

 

 

ATTY. ZENAIDA P. REYES,

                             Respondent.                                                   

A.C. No. 6246   [Formerly CBD No. 00-730] 

Present:

    CORONA, C.J.,*

    CARPIO,

    VELASCO, JR.,*

    LEONARDO-DE CASTRO,**

    BRION,

    PERALTA,

    BERSAMIN,*

    DELCASTILLO,**

    ABAD,

    VILLARAMA, JR.,

    PEREZ,

    MENDOZA,

    SERENO,

REYES, and

PERLAS-BERNABE, JJ.

 

Promulgated:

        November 15, 2011

 

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D E C I S I O N

PER CURIAM:

 

          Before this Court is an administrative complaint, filed by complainant Marites E. Freeman, seeking the disbarment of respondent Atty. Zenaida P. Reyes, for gross dishonesty in obtaining money from her, without rendering proper legal services, and appropriating the proceeds of the insurance policies of her deceased husband.  Complainant also seeks recovery of all the amounts she had given to respondent and the insurance proceeds, which was remitted to the latter, with prayer for payment of moral and exemplary damages.

          In her sworn Complaint-Affidavit[18][1] dated April 7, 2000, filed on May 10, 2000, complainant alleged that her husband Robert Keith Freeman, a British national, died in London on October 18, 1998.  She and her son,  Frank Lawrence applied for visas, to enable them to attend the wake and funeral, but their visa applications were denied.  Complainant engaged the services of respondent who, in turn, assured her that she would help her secure the visas and obtain the death benefits and other insurance claims due her.  Respondent told complainant that she had to personally go to London to facilitate the processing of the claims, and demanded that the latter bear all expenses for the trip.  On December 4, 1998, she gave respondent the amount of P50,000.00.  As acknowledgment for the receipt of P47,500.00 for service charge, tax, and one round trip ticket to London, respondent gave her a Cash/Check Voucher,[19][2] issued by Broadway Travel, Inc., but on the right margin thereof, the notations in the amount of “P50,000.00” and the date “12-5-98” were written and duly initialled.  On December 9, 1998, she acceded into giving respondent the amount of P20,000.00 for legal costs in securing the visas, as shown by the Temporary Receipt[20][3] bearing said date, issued by Z.P. Reyes Law Office (respondent’s law firm).  On December 18, 1998, she went to see respondent to follow-up the visa applications, but the latter asked for the additional amount of P10,000.00 for travel expenses, per Temporary Receipt[21][4] bearing said date, issued by respondent’s law firm.  After several phone calls inquiring about the status of the visa applications, respondent told her, “Mahirap gapangin ang pagkuha ng visa, kasi blacklisted at banned ka sa Embassy.”  (It is difficult to railroad the process of securing visa, because you are blacklisted and banned by the Embassy).  Sometime in February 1999, respondent told her that to lift the travel ban on her, she should shell out P18,000.00 as “panlagay” or “grease money” to bribe some staff of the British Embassy.  After a week, respondent informed her that the ban was lifted, but the visas would be issued on a later date, as she had convinced the British Embassy to issue resident visas instead of tourist visas.  Respondent told her that to expedite the release of the resident visas, she should again give P20,000.00 and a bottle of wine, worth P5,000.00, as “grease money” to bribe the British Embassy personnel.  After several weeks, respondent told her that the period for visa applications had lapsed, and that another amount of P18,000.00 was needed to reinstate the same.  Later, respondent asked for P30,000.00 as legal costs, per Temporary Receipt,[22][5] dated April 19, 1999, to be used for booking the former’s flight to London, and P39,000.00 for legal costs, per Temporary Receipt[23][6] dated May 13, 1999, to cover the expenses for the plane tickets.  Both temporary receipts were issued by respondent’s law firm. 

          Complainant said that despite repeated follow-ups with respondent, nothing came out.  Instead, she received a picture of her husband’s burial, sent by one Stanley Grist, a friend of the deceased.  She later learned that respondent left for Londonalone, without informing her about it.  Respondent explained that she needed to go to Londonto follow-up the insurance claims, and warned her not to communicate with Grist who allegedly pocketed the proceeds of her husband’s insurance policy.  She told respondent that she received a letter[24][7] dated March 9, 1999 from one Martin Leigh, an Officer of H.M. Coroner’s Court, London, informing her about the arrangements for the funeral and that her late husband was covered by three insurance policies, to wit:  Nationwide Building Society (Account Number 0231/471 833 630), Lincoln Assurance Company (British National Life Policy No. PP/85/00137851), and Scottish Equitable PLC (Policy No. 2779512).[25][8] Respondent offered to help and assured her that representations with the insurance companies had earlier been made, so that the latter would be receiving the insurance proceeds soon. 

          According to the complainant, respondent required her to affix her signature in a Special Power of Attorney (SPA),[26][9] dated November 6, 1998 [first SPA], which would authorize the respondent to follow-up the insurance claims.  However, she found out that the SPA [first SPA] she signed was not notarized, but another SPA,[27][10] dated April 6, 1999, was notarized on April 30, 1999 [second SPA], and that her signature therein was forged.  Later, she came across a similar copy of the SPA,[28][11] dated April 6, 1999, also notarized on April 30, 1999 [third SPA], but this time, additionally bearing the signatures of two witnesses.  She said that without her knowledge and consent, respondent used the third SPA, notarized on April 30, 1999, in her correspondence with the insurance companies inLondon. 

          Complainant discovered that in an undated letter,[29][12] addressed to one Lynn O. Wilson of Scottish Equitable PLC (Policy No. 2779512), respondent made representations that her husband left no will and that she had no verified information as to the total value of her husband’s estate and the existence of any property in London that would be subjected to Grant of Representation.  Said letter requested that complainant be advised on the value for probate in the amount of £5231.35 and the procedure for its entitlement.  Respondent added therein that “As to the matter of the installments due, as guaranteed by Mr. Freeman’s policy, Mrs. Freeman requests that the remittance be sent directly to Account No. 0148-27377-7 Far East Bank, Diliman Branch, with business address at Malakas St. Barangay Central District, Quezon City, Philippines under the account name:  Reyes/Mendiola, which serves as her temporary account until further notice.”

          Subsequently, in a letter[30][13] dated July 29, 1999, addressed to one Andrea Ransom of Lincoln Financial Group (PP/8500137851), respondent, declaring that she is the “Counsel/Authorized Representative [of the complainant], per SPA dated April 20, 1999 [should be April 30, 1999],” replied that she had appended the documents required (i.e., marriage certificate and birth certificate), in her previous letter,[31][14] dated April 20, 1999, to the said insurance company; that pursuant to an SPA[32][15] executed in her favor, all communications pertaining to complainant should be forwarded to her law firm; that she sought clarification on whether complainant is entitled to death benefits under the policy and, if so, the amount due and the requirements to be complied with; and that in the absence of a Grant of Probate (i.e., the deceased having left no will), she “enclosed an alternative document [referring to the Extrajudicial Settlement[33][16] dated June 1, 1999, notarized by respondent] in support of the claim of the surviving spouse (Mrs. Freeman) and their sole child (Frank Lawrence Freeman).”  In the same letter, respondent reiterated that complainant “requests that any amount of monies due or benefits accruing, be directly deposited to Account No. 0148-27377-7 at Far East Bank, Diliman Branch, Malakas St., Quezon City, Philippines under Reyes/Mendiola, which serves as her temporary account until further notice.” 

          Complainant declared that in November 1999, she made a demand upon the respondent to return her passport and the total amount of P200,000.00 which she gave for the processing of the visa applications.  Not heeding her demand, respondent asked her to attend a meeting with the Consul of the British Embassy, purportedly to discuss about the visa applications, but she purposely did not show up as she got disgusted with the turn of events.  On the supposed rescheduled appointment with the British Consul, respondent, instead, brought her to Airtech Travel and Tours, and introduced her to one Dr. Sonny Marquez, the travel agency’s owner, who assured her that he would help her secure the visas within a week.  Marquez made her sign an application for visa and demanded the amount of P3,000.00.  After a week, she talked to one Marinez Patao, the office secretary of respondent’s law firm, who advised her to ask respondent to return the total amount of P200,000.00.  

          In her Counter-Affidavit/Answer[34][17] dated June 20, 2000, respondent countered that in 1998, complainant, accompanied by former Philippine Sports Commission (PSC) Commissioner Josefina Bauzon and another woman whose identity was not ascertained, sought legal advice regarding the inheritance of her deceased husband, a British national.[35][18]  She told complainant to submit proof of her marriage to the deceased, birth certificate of their son, and other documents to support her claim for the insurance proceeds.  She averred that before she accepted the case, she explained to complainant that she would be charging the following amounts:  acceptance fee of P50,000.00, P20,000.00 for initial expenses, and additional amount of P50,000.00 on a contingent basis.  She said complainant agreed to these rates and, in fact, readily paid her the said amounts.  With an SPA,[36][19] dated April 6, 1999 and notarized on April 30, 1999 [second SPA], having been executed in her favor, she made preliminary communications with the insurance companies inLondon regarding complainant’s claims.  Having received communications from said insurance companies, she stated that complainant offered, which she accepted, to shoulder her plane ticket and the hotel accommodation, so that she can personally attend to the matter.  She left forLondon in May 1999 and, upon her return, she updated the complainant about the status of her claims. 

          As to the visa arrangements, respondent said that when she met with complainant, she asked her why she had not left for London, and the latter replied that her contacts with the embassy had duped her.  She explained to complainant that she could refer her to a travel consultant who would handle the visa arrangements for a fee, to which the latter agreed.  She stated that when complainant acceded to such arrangement, she accompanied her, in December 1999, to a travel consultant of Airtech Travel and Tours, who found out that complainant’s previous visa applications had been denied four times, on the ground of falsity of information.  Thereafter, complainant was able to secure a visa through the help of the travel consultant, who charged her a “professional fee” of P50,000.00.  She added that she had no participation in the foregoing transactions, other than referring complainant to the said travel consultant.

          With regard to the alleged falsified documents, respondent denied knowledge about the existence of the same, and declared that the SPA,[37][20] dated April 6, 1999, which was notarized on April 30, 1999 [second SPA], was her basis for communications with the insurance companies in London.  She stated that in her absence, complainant, through wily representations, was able to obtain the case folder from Leah Buama, her office secretary, and never returned the same, despite repeated demands.  She said that she was unaware of the loss of the case folder as she then had no immediate need of it.  She also said that her secretary failed to immediately report about the missing case folder prior to taking a leave of absence, so as to attend to the financial obligations brought about by her mother’s lingering ailment and consequent death.[38][21]  Despite repeated requests, complainant failed to return the case folder and, thus, the law firm was prevented from pursuing the complainant’s insurance claims.  She maintained that through complainant’s own criminal acts and machinations, her law office was prevented from effectively pursuing her claims.  Between January to February 2000, she sent complainant a billing statement which indicated the expenses incurred[39][22] by the law firm, as of July 1999; however, instead of settling the amount, the latter filed a malicious suit against her to evade payment of her obligations.  

          On January 19, 2001, complainant filed a Motion Submitting the Instant Case for Immediate Resolution with Comments on Respondent’s Answer, alleging, among others, that upon seeing the letter[40][23] dated March 9, 1999 of the Coroner’s Court, respondent began to show interest and volunteered to arrange for the insurance claims; that no acceptance fee was agreed upon between the parties, as the amounts earlier mentioned represented the legal fees and expenses to be incurred attendant to the London trip; that the parties verbally agreed to a 20% contingent fee out of the total amount to be recovered; that she obtained the visas with the assistance of a travel consultant recommended by respondent; that upon return from abroad, respondent never informed her about the arrangements with the insurance companies in London that remittances would be made directly to the respondent’s personal account at Far East Bank; that the reason why respondent went to London was primarily to attend the International Law Conference, not solely for her insurance claims, which explained why the receipt for the P50,000.00, which she gave, bore the letterhead of Broadway Travel, Inc. (in the amount of P47,500.00) and that she merely made a handwritten marginal note regarding the receipt of the amount of P50,000.00; that with the use of an SPA [referring to the second SPA] in favor of the respondent, bearing her forged signature, the amount of £10,546.7 [should be £10,960.63],[41][24] or approximately equivalent to P700,000.00, was remitted to the personal bank account of respondent, but the same was never turned over to her, nor was she ever informed about it; and that she clarified that she never executed any SPA that would authorize respondent to receive any money or check due her, but that the only SPA [first SPA] she executed was for the purpose of representing her in court proceedings. 

          Meanwhile, respondent filed a criminal complaint[42][25] for malicious mischief, under Article 327 of the Revised Penal Code, against complainant and one Pacita Mamaril (a former client of respondent), for allegedly barging into the law office of the former and, with the use of a pair of scissors, cut-off the cords of two office computer keyboards and the line connections for the refrigerator, air conditioning unit, and electric fan, resulting in damage to office equipment in an estimated amount of P200,000.00.  In the Resolution,[43][26] dated July 31, 2000, the Assistant City Prosecutor of Quezon City recommended that the complaint be dismissed for insufficiency of evidence.  The case was subsequently dismissed due to lack of evidence and for failure of respondent to appear during the preliminary investigation of the case.[44][27]

          Thereafter, complainant filed a criminal case for estafa, under Article 315, paragraph 2 (a) of the Revised Penal Code, against respondent, docketed as Criminal Case No. Q-02-108181, before the Regional Trial Court of Quezon City, Branch 83.  On Motion for Reinvestigation by respondent, the City Prosecutor of Quezon City, in the Resolution[45][28] dated October 21, 2002, recommended that the information, dated February 8, 2002, for estafa be withdrawn, and that the case be dismissed, for insufficiency of evidence.  On November 6, 2002, the Assistant City Prosecutor filed a Motion to Withdraw Information.[46][29]  Consequently, in the Order[47][30] dated November 27, 2002, the trial court granted the withdrawal of the information, and dismissed the case.

          In the Report and Recommendation[48][31] dated August 28, 2003, Investigating Commissioner Milagros V. San Juan of the Integrated Bar of the Philippines (IBP) Commission on Bar Discipline found respondent to have betrayed the trust of complainant as her client, for being dishonest in her dealings and appropriating for herself the insurance proceeds intended for complainant.   The Investigating Commissioner pointed out that despite receipt of the approximate amount of P200,000.00, respondent failed to secure the visas for complainant and her son, and that through deceitful means, she was able to appropriate for herself the proceeds of the insurance policies of complainant’s husband. Accordingly, the Investigating Commissioner recommended that respondent be suspended from the practice of law for the maximum period allowed under the law, and that she be ordered to turn over to complainant the amounts she received from theLondon insurance companies.  

          On September 27, 2003, the IBP Board of Governors, in Resolution No. XVI-2003-166,[49][32] adopted and approved the recommendation of the Investigating Commissioner, with modification that respondent be disbarred.

          The Court agrees with the observation of the Investigating Commissioner that complainant had sufficiently substantiated the charge of gross dishonesty against respondent, for having appropriated the insurance proceeds of the complainant’s deceased husband, and the recommendation of the IBP Board of Governors that respondent should be disbarred.

          The object of a disbarment proceeding is not so much to punish the individual attorney himself, as to safeguard the administration of justice by protecting the court and the public from the misconduct of officers of the court, and to remove from the profession of law persons whose disregard for their oath of office have proved them unfit to continue discharging the trust reposed in them as members of the bar.[50][33] 

          A disciplinary proceeding against a lawyer is sui generis.  Neither purely civil nor purely criminal, it does not involve a trial of an action or a suit, but rather an investigation by the Court into the conduct of one of its officers.  Not being intended to inflict punishment, it is in no sense a criminal prosecution.  Accordingly, there is neither a plaintiff nor a prosecutor therein.  It may be initiated by the Court motu proprio.  Public interest is its primary objective, and the real question for determination is whether or not the attorney is still fit to be allowed the privileges as such.  Hence, in the exercise of its disciplinary powers, the Court merely calls upon a member of the Bar to account for his actuations as an officer of the Court, with the end in view of preserving the purity of the legal profession and the proper and honest administration of justice, by purging the profession of members who, by their misconduct, have proved themselves no longer worthy to be entrusted with the duties and responsibilities pertaining to the office of an attorney.[51][34]

          Being a sui generis proceeding, the main disposition of this Court is the determination of the respondent’s administrative liability.  This does not include the grant of affirmative reliefs, such as moral and exemplary damages as prayed for by the complainant, which may very well be the subject of a separate civil suit for damages arising from the respondent’s wrongful acts, to be filed in the regular courts.

          In the absence of a formal contract, complainant engaged the legal services of respondent to assist her in securing visa applications and claiming the insurance proceeds of her deceased husband.  There are conflicting allegations as to the scope of authority of respondent to represent the complainant.  A perusal of the [first] SPA,[52][35] dated November 6, 1998, which was not notarized, showed that complainant merely authorized respondent to represent her and her son, in order to protect their rights and interests, in the extrajudicial and/or judicial proceeding and the possibility of any amicable settlement, relating to the estate of her deceased husband, both in the Philippines and United Kingdom.  The [second] SPA,[53][36] dated April 6, 1999 and notarized on April 30, 1999, allegedly bearing the forged signature of complainant, in addition to the foregoing representations, authorized respondent to appear and represent the complainant, in connection with her insurance claims, and to receive monies and/or encash treasury warrants, checks arising from said claims, deposit the same, and dispose of such funds as may be necessary for the successful pursuit of the claims.  The [third] SPA,[54][37] also dated April 6, 1999 and notarized on April 30, 1999, allegedly bearing the forged signature of complainant, but additionally bearing the signatures of two witnesses, was a faithful reproduction of the second SPA, with exactly the same stipulations.  The three SPAs, attached to the pleadings of the parties and made integral parts of the records of the case, were not certified true copies and no proof was adduced to verify their genuineness and authenticity.  Complainant repudiates the representation of respondent in her behalf with regard to the insurance claims; however, the admission of respondent herself, as lawyer, that she received payment from complainant, her client, constitutes sufficient evidence to establish a lawyer-client relationship.[55][38] 

          Be that as it may, assuming that respondent acted within the scope of her authority to represent the complainant in pursuing the insurance claims, she should never deviate from the benchmarks set by Canon 16 of the Code of Professional Responsibility which mandates that a lawyer shall hold in trust all moneys and properties of his client that may come into his possession.  Specifically, Rule 16.01 states that a lawyer shall account for all money or property collected or received for or from the client, and Rule 16.03 thereof requires that a lawyer shall deliver the funds and property of a client when due or upon demand. 

          When a lawyer receives money from the client for a particular purpose, the lawyer is bound to render an accounting to the client showing that the money was spent for a particular purpose.  And if he does not use the money for the intended purpose, the lawyer must immediately return the money to his client.[56][39]  In the present case, the cash/check voucher and the temporary receipts issued by respondent, with the letterhead of her law firm, Z.P. Reyes Law Office, indubitably showed that she received the total amount of P167,000.00[57][40] from the complainant, in connection with the handling of the latter’s case.  Respondent admitted having received money from the complainant, but claimed that the total amount of P120,000.00[58][41] she received was in accordance with their agreement.  Nowhere was it shown that respondent rendered an accounting or, at least, apprised the complainant of the actual expenses incurred.  This leaves a quandary as to the discrepancy in the actual amount that respondent should receive, supposedly pursuant to an agreement of engaging respondent to be her counsel, as there was absence of a formal contract of legal services. 

          Further, on December 4, 1998, complainant gave P50,000.00 to the respondent for the purpose of assisting her in claiming the insurance proceeds; however, per Application for United Kingdom Entry Clearance,[59][42] dated December 8, 1998, it showed that respondent’s primary purpose in traveling to London was to attend the International Law Conference in Russell Square, London.  It is appalling that respondent had the gall to take advantage of the benevolence of the complainant, then grieving for the loss of her husband, and mislead her into believing that she needed to go to London to assist in recovering the proceeds of the insurance policies.  Worse, respondent even inculcated in the mind of the complainant that she had to adhere to the nefarious culture of giving “grease money” or lagay, in the total amount of P43,000.00,[60][43] to the British Embassy personnel, as if it was an ordinary occurrence in the normal course of conducting official business transactions, as a means to expedite the visa applications.  This runs afoul the dictum in Rule 1.01 of Canon 1 of the Code of Professional Responsibility which states that a lawyer shall not engage in unlawful, dishonest, immoral or deceitful conduct.   

          More importantly, apart from her bare denials that no remittance was made to her personal bank account, as shown by the monthly transaction report (covering January to December for the years 2000-2001),[61][44] respondent never attempted to reconcile the discrepancy, or give a satisfactory explanation, as to why she failed to render an accounting, on the proceeds of the insurance policies that should rightfully belong to the complainant vis-á-vis the correspondence by the insurance companies based in London, pertaining to the remittance of the following amounts to the respondent’s personal bank account, to wit:  Per letter[62][45] dated November 23, 2000, from one Rupesh Majithia, Administrator, Customer Services Department of Lincoln Financial Group, addressed to complainant, stating, among others, that “An amount of £10,489.57 was paid out under the Power of Attorney on 27th September 2000),” and per letter,[63][46] dated April 28, 2000, from one Jeff Hawkes, Customer Services Claims (CLD), of the Eagle Star Life Assurance Company Limited, addressed to one Andrea Ransom of the Lincoln Financial Group, The Quays, stating, among others, that “I can confirm that a death claim was made on the policy on 13 October 1999 when an amount of £471.06 was sent by International Moneymover to the client’s legal representative, ZP Reyes Law Office of Quezon City, Philippines.”  Clearly, there is no doubt that the amounts of £10,489.57 and £471.06 were remitted to respondent through other means of international transactions, such as the International Moneymover, which explains why no direct remittance from the insurance companies in London could be traced to the personal bank account of respondent, per monthly transaction report, covering January to December for the years 2000-2001.

          A criminal case is different from an administrative case, and each must be disposed of according to the facts and the law applicable to each case.[64][47]  Section 5, in relation to Sections 1[65][48] and 2,[66][49] Rule 133, Rules of Court states that in administrative cases, only substantial evidence is required, not proof beyond reasonable doubt as in criminal cases, or preponderance of evidence as in civil cases.  Substantial evidence is that amount of relevant evidence which a reasonable mind might accept as adequate to justify a conclusion.  Applying the rule to the present case, the dismissal of a criminal case does not preclude the continuance of a separate and independent action for administrative liability, as the weight of evidence necessary to establish the culpability is merely substantial evidence.  Respondent’s defense that the criminal complaint for estafa against her was already dismissed is of no consequence.  An administrative case can proceed independently, even if there was a full-blown trial wherein, based on both prosecution and defense evidence, the trial court eventually rendered a judgment of acquittal, on the ground either that the prosecution failed to prove the respondent’s guilt beyond reasonable doubt, or that no crime was committed.  More so, in the present administrative case, wherein the ground for the dismissal of the criminal case was because the trial court granted the prosecution’s motion to withdraw the information and, a fortiori, dismissed the case for insufficiency of evidence.                                                                                                          

          In Velez v. De Vera,[67][50] the Court ruled that the relation between attorney and client is highly fiduciary in nature.  Being such, it requires utmost good faith, loyalty, fidelity, and disinterestedness on the part of the attorney.  Its fiduciary nature is intended for the protection of the client.  The Canon of Professional Ethics provides that the lawyer should refrain from any action whereby for his personal benefit or gain, he abuses or takes advantage of the confidence reposed in him by his client.  Money of the client or collected for the client, or other trust property coming into the possession of the lawyer, should be reported and accounted for promptly and should not, under any circumstances, be commingled with his own or be used by him.  Consequently, a lawyer’s failure to return upon demand the funds or property held by him on behalf of his client gives rise to the presumption that he has appropriated the same for his own use to the prejudice of, and in violation of the trust reposed in him by, his client.  It is a gross violation of general morality as well as of professional ethics; it impairs the public confidence in the legal profession and deserves punishment.  Lawyers who misappropriate the funds entrusted to them are in gross violation of professional ethics and are guilty of betrayal of public confidence in the legal profession. Those who are guilty of such infraction may be disbarred or suspended indefinitely from the practice of law.[68][51]  Indeed, lawyering is not a business.  It is a profession in which duty to public service, not money, is the primary consideration.[69][52]

          In some cases, the Court stripped lawyers of the privilege to practice their profession for breach of trust and confidence pertaining to their clients’ moneys and properties.  In Manzano v. Soriano,[70][53] therein respondent, found guilty of grave misconduct (misappropriating the funds belonging to his client) and malpractice, represented therein complainant in a collection suit, but failed to turn over the amount of P50,000.00 as stipulated in their agreement and, to conceal the misdeed, executed a simulated deed of sale, with himself as the vendor and, at the same time, the notary public.  In Lemoine v. Balon, Jr.,[71][54] therein respondent, found guilty of malpractice, deceit, and gross misconduct, received the check corresponding to his client’s insurance claim, falsified the check and made it payable to himself, encashed the same, and appropriated the proceeds. 

          Law advocacy, it has been stressed, is not capital that yields profits.  The returns it births are simple rewards for a job done or service rendered.  It is a calling that, unlike mercantile pursuits which enjoy a greater deal of freedom from government interference, is impressed with public interest, for which it is subject to State regulation.[72][55]  Respondent’s repeated reprehensible acts of employing chicanery and unbecoming conduct to conceal her web of lies, to the extent of milking complainant’s finances dry, and deceitfully arrogating upon herself the insurance proceeds that should rightfully belong to complainant, in the guise of rendering legitimate legal services, clearly transgressed the norms of honesty and integrity required in the practice of law.  This being so, respondent should be purged from the privilege of exercising the noble legal profession.   

          WHEREFORE, respondent Atty. Zenaida P. Reyes is found guilty of gross misconduct and DISBARRED from the practice of law.  Let her name be stricken off the Roll of Attorneys.  This Decision is immediately executory.

          Let all the courts, through the Office of the Court Administrator, Integrated Bar of thePhilippines, and the Office of the Bar Confidant, be notified of this Decision and be it duly recorded in the personal file of the respondent. 

          Respondent is ORDERED to turn over to complainant Marites E. Freeman the proceeds of the insurance policies remitted to her by Lincoln Financial Group, in the amount of £10,489.57, and Eagle Star Life Assurance Company Limited, £471.06, or in the total amount of £10,960.63, which is approximately equivalent to P700,000.00, pursuant to the prevailing exchange rate at the time of the subject transaction.  

          SO ORDERED.

                                                                                                   RENATO C. CORONA                                                      Chief Justice

 

 

 

 

           ANTONIO T. CARPIO                     PRESBITERO J. VELASCO, JR.        

                   Associate Justice                                         Associate Justice

                   On official leave

TERESITA J. LEONARDO-DE CASTRO             ARTURO D. BRION

                  Associate Justice                                          Associate Justice

                   DIOSDADO M. PERALTA                           LUCAS P. BERSAMIN                       

                           Associate Justice                                            Associate Justice

                      On official leave                                                                 

                 MARIANO C. DEL CASTILLO                     ROBERTO A. ABAD  

                              Associate Justice                                        Associate Justice

 

 

  

              MARTIN S. VILLARAMA, JR.                   JOSE PORTUGAL PEREZ

                            Associate Justice                                          Associate Justice

 

 

 

 

     JOSE CATRAL MENDOZA                     MARIA LOURDES P. A. SERENO         

                Associate Justice                                           Associate Justice

       BIENVENIDO L. REYES                    ESTELA M. PERLAS-BERNABE

                 Associate Justice                                          Associate Justice

\

 

 


[1][33]                               Berbano v. Barcelona, A.C. No. 6084, September 3, 2003, 410 SCRA 258, 264.

[2][33]                               Berbano v. Barcelona, A.C. No. 6084, September 3, 2003, 410 SCRA 258, 264.

[3][34]          In re Almacen, G.R. No. L-27654, February 18, 1970, 31 SCRA 562, 600, cited in Pena v. Aparicio, A.C. No. 7298, June 25, 2007, 525 SCRA 444, 453 and Berbano v. Barcelona, id. at 264.

[4][39]          Celaje v. Soriano, A.C. No. 7418, October 9, 2007, 535 SCRA 217, 222, citing Small v. Banares, A.C. No. 7021, February 21, 2007, 516 SCRA 323, which cited Meneses v. Macalino, A.C. No. 6651, February 27, 2006, 483 SCRA 212 and Barnachea v. Quiocho, 447 Phil. 67, 75 (2003).

[5][40]          The amounts are as follows:  P50,000.00 for service charge, tax, and one round trip ticket to London; P20,000.00 for legal costs;  P10,000.00 for travel expenses,  P30,000.00 for legal costs; P39,000.00 for legal costs, and P18,000.00 to reinstate the lapsed application (no receipt was issued).

[6][41]          The amounts are as follows:  P50,000.00 as acceptance fee, P20,000.00 for initial expenses, and P50,000.00 as contingency fee.

[7][42]          Annex “L” of complainant’s Motion Submitting Instant Case for Immediate Resolution with Comments on Respondent’s Answer dated January 19, 2001, rollo, pp. 52-54.

[8][43]          The amounts are as follows:   P18,000.00, P20,000.00, and P5,000.00 worth of wine.

[9][47]          Office of the Court Administrator v. Claudio M. Lopez, Process Server, Municipal Trial Court, Sudipen, La Union, A.M. No. P-10-2788, January 18, 2011.

[10][48]        Section 1.  Preponderance of evidence, how determined. – In civil cases, the party having the burden of proof must establish his case by a preponderance of evidence.  In determining where the preponderance or superior weight of evidence on the issues involved lies, the court may consider all the facts and circumstances of the case, the witnesses’ manner of testifying, their intelligence, their means and opportunity of knowing the facts to which they are testifying, the nature of the facts to which they testify, the probability or improbability of their testimony, their interest or want of interest, and also their personal credibility so far as the same may legitimately appear upon the trial.  The court may also consider the number of witnesses, though the preponderance is not necessarily with the greater number.

[11][49]         Section 2.  Proof beyond reasonable doubt. – In a criminal case, the accused is entitled to an acquittal, unless his guilt is shown beyond reasonable doubt.  Proof beyond reasonable doubt does not mean such a degree of proof as, excluding possibility of error, produces absolute certainty.  Moral certainty only is required, or that degree of proof which produces conviction in an unprejudiced mind.

[12][50]        A.C. No. 6697, B.M. No. 1227 and A.M. No. 05-5-15-SC, July 25, 2006, 496 SCRA 345.

[13][51]        Id. at 380-381, citing Espiritu v. Ulep, A.C. No. 5808, May 4, 2005, 458 SCRA 1, 8-9.

[14][52]         Adrimisin v. Javier, A.C. No. 2591, September 8, 2006, 501 SCRA 192, 198.

[15][53]         A.C. No. 8051, April 7, 2009, 584 SCRA 1.

[16][54]         A.C. No. 5829, October 28, 2003, 414 SCRA 511.

[17][55]        Rayos v. Hernandez, G.R. No. 169079, February 12, 2007, 515 SCRA 517, 527, citing Metropolitan Bank & Trust Company v. Court of Appeals, G.R. Nos. 86100-03, January 23, 1990, 181 SCRA 367, 377, which cited Canlas v. Court of Appeals, G.R. No. L-77691, August 8, 1988, 164 SCRA 160, 173-174.

*               No part.

**             On official leave.

[18][1]          Rollo, pp. 1-8.

[19][2]          Annex “A” of complainant’s Complaint-Affidavit dated April 7, 2000, id. at 9.

[20][3]          Annex “B” of complainant’s Complaint-Affidavit dated April 7, 2000, id. at 10.

[21][4]          Annex “C” of complainant’s Complaint-Affidavit dated April 7, 2000, id.

[22][5]          Annex “D” of complainant’s Complaint-Affidavit dated April 7, 2000, id. at 11.

[23][6]          Annex “E” of complainant’s Complaint-Affidavit dated April 7, 2000, id.

[24][7]          Annex “F” of complainant’s Complaint-Affidavit dated April 7, 2000, id. at 12-14.

[25][8]                          Id. at 13.

[26][9]          Annex “G” of complainant’s Complaint Affidavit dated April 7, 2000, id. at 15; Exhibit “7” of respondent’s Motion for Reconsideration dated January 31, 2006, id. at 120.

[27][10]         Annex “H” of complainant’s Complaint Affidavit dated April 7, 2000, id. at 16; Exhibit “8” of respondent’s Motion for Reconsideration dated January 31, 2006, id. at 121.

[28][11]         Annex “I” of complainant’s Complaint Affidavit dated April 7, 2000, id. at 18.

[29][12]         Annex “J” of complainant’s Complaint-Affidavit dated April 7, 2000, id. at 19.

[30][13]         Id. at 20-21.

[31][14]                         Id.

[32][15]                                     Respondent did not make any specific mention as to which SPA she was referring to.

[33][16]        Annex “O-5” of complainant’s Motion Submitting the Instant Case for Immediate Resolution with Comments on Respondent’s Answer dated January 19, 2001, id. at 70-72.

[34][17]         Id. at 30-35.

[35][18]                             Affidavit of Josefina V. Bauzon dated June 26, 2000, id. at 39-40.

[36][19]         Respondent made reference to Annex “H” of complainant’s Complaint-Affidavit dated April 7, 2000, id. at 16.

[37][20]         Id.

[38][21]                         Affidavit of Leah Buama dated June 26, 2000, id. at 36-38

[39][22]        The Statement of Account as of July 1999 indicated the following:  Refund of ZPR’s [initials of respondent] travel expenses to London (May 1999) in the amounts of:  P45,061.00 round trip ticket, P5,000.00 travel tax and others, P20,000.00 hotel accommodation, and P10,000.00 representation expenses, or a total of  P80,061.00; and professional fees in the amounts of:   P50,000.00 acceptance fee,  P15,000.00 legal costs/documentation research, and 10% of award/claim (to be determined later), or the total amount of  P145,061.00, id. at 138. 

[40][23]                         Supra note 7. 

[41][24]        The following amounts were remitted to respondent’s personal bank account by the insurance companies based in London, to wit:  Per letter dated November 23, 2000, £10,489.57 from Lincoln Financial Group, id. at 63; and per letter April 28, 2000, £471.06 from Eagle Star Life Assurance Company Limited, id. at 74.

[42][25]         Annex “M” of complainant’s Motion Submitting the Instant Case for Immediate Resolution with Comments on Respondent’s Answer dated January 19, 2001, id. at 55-58.

[43][26]         Annex “N” of complainant’s Motion Submitting Instant Case for Immediate Resolution with Comments on Respondent’s Answer dated January 19, 2001, id. at 60.

[44][27]         Complainant’s Motion Submitting Instant Case for Immediate Resolution with Comments on Respondent’s Answer dated January 19, 2001, id. at 50.

[45][28]                             Exhibit “22” of respondent’s Motion for Reconsideration dated January 31, 2006, id. at 140-142.

[46][29]                             Id.

[47][30]                             Exhibit “21” of respondent’s Motion for Reconsideration dated January 31, 2006, id. at 139.

[48][31]         Id. at 79-93.

[49][32]         Id. at 78.

[50][33]                             Berbano v. Barcelona, A.C. No. 6084, September 3, 2003, 410 SCRA 258, 264.

[51][34]         In re Almacen, G.R. No. L-27654, February 18, 1970, 31 SCRA 562, 600, cited in Pena v. Aparicio, A.C. No. 7298, June 25, 2007, 525 SCRA 444, 453 and Berbano v. Barcelona, id. at 264.

[52][35]                         Supra note 9.

[53][36]                         Supra note 10.

[54][37]                             Supra note 11.

[55][38]        Spouses Rabanal v. Atty. Tugade, 432 Phil. 1064, 1068 (2002), citing Villafuerte v. Cortez, A.C. No. 3455, April 14, 1998, 288 SCRA 687.

[56][39]        Celaje v. Soriano, A.C. No. 7418, October 9, 2007, 535 SCRA 217, 222, citing Small v. Banares, A.C. No. 7021, February 21, 2007, 516 SCRA 323, which cited Meneses v. Macalino, A.C. No. 6651, February 27, 2006, 483 SCRA 212 and Barnachea v. Quiocho, 447 Phil. 67, 75 (2003).

[57][40]        The amounts are as follows:  P50,000.00 for service charge, tax, and one round trip ticket to London; P20,000.00 for legal costs;  P10,000.00 for travel expenses,  P30,000.00 for legal costs; P39,000.00 for legal costs, and P18,000.00 to reinstate the lapsed application (no receipt was issued).

[58][41]        The amounts are as follows:  P50,000.00 as acceptance fee, P20,000.00 for initial expenses, and P50,000.00 as contingency fee.

[59][42]        Annex “L” of complainant’s Motion Submitting Instant Case for Immediate Resolution with Comments on Respondent’s Answer dated January 19, 2001, rollo, pp. 52-54.

[60][43]         The amounts are as follows:   P18,000.00, P20,000.00, and P5,000.00 worth of wine.

[61][44]        Referred to as Far East Bank and Trust Company (FEBTC), now Bank of the Philippine Islands (BPI) monthly records, respondent’s Motion for Reconsideration dated January 31, 2006, Exhibits “17” to “17-a” to “17-I” [should be “17-J,”], id. at 126-136.

[62][45]         Annex “O” of complainant’s Motion Submitting Instant Case for Immediate Resolution with Comments on Respondent’s Answer dated January 19, 2001, id. at 63.

[63][46]         Annex “O-7” of complainant’s Motion Submitting the Instant Case for Immediate Resolution with Comments on Respondent’s Answer dated January 19, 2001, id. at 74.

[64][47]        Office of the Court Administrator v. Claudio M. Lopez, Process Server, Municipal Trial Court, Sudipen, La Union, A.M. No. P-10-2788, January 18, 2011.

[65][48]        Section 1.  Preponderance of evidence, how determined. – In civil cases, the party having the burden of proof must establish his case by a preponderance of evidence.  In determining where the preponderance or superior weight of evidence on the issues involved lies, the court may consider all the facts and circumstances of the case, the witnesses’ manner of testifying, their intelligence, their means and opportunity of knowing the facts to which they are testifying, the nature of the facts to which they testify, the probability or improbability of their testimony, their interest or want of interest, and also their personal credibility so far as the same may legitimately appear upon the trial.  The court may also consider the number of witnesses, though the preponderance is not necessarily with the greater number.

[66][49]         Section 2.  Proof beyond reasonable doubt. – In a criminal case, the accused is entitled to an acquittal, unless his guilt is shown beyond reasonable doubt.  Proof beyond reasonable doubt does not mean such a degree of proof as, excluding possibility of error, produces absolute certainty.  Moral certainty only is required, or that degree of proof which produces conviction in an unprejudiced mind.

[67][50]        A.C. No. 6697, B.M. No. 1227 and A.M. No. 05-5-15-SC, July 25, 2006, 496 SCRA 345.

[68][51]        Id. at 380-381, citing Espiritu v. Ulep, A.C. No. 5808, May 4, 2005, 458 SCRA 1, 8-9.

[69][52]         Adrimisin v. Javier, A.C. No. 2591, September 8, 2006, 501 SCRA 192, 198.

[70][53]         A.C. No. 8051, April 7, 2009, 584 SCRA 1.

[71][54]         A.C. No. 5829, October 28, 2003, 414 SCRA 511.

[72][55]        Rayos v. Hernandez, G.R. No. 169079, February 12, 2007, 515 SCRA 517, 527, citing Metropolitan Bank & Trust Company v. Court of Appeals, G.R. Nos. 86100-03, January 23, 1990, 181 SCRA 367, 377, which cited Canlas v. Court of Appeals, G.R. No. L-77691, August 8, 1988, 164 SCRA 160, 173-174.

CASE 2011-0217: CONSTANCIO F. MENDOZA VS. SENEN C. FAMILARA and COMMISSION ON ELECTIONS (G.R. NO. 191017, 15 NOVEMBER 2011, PEREZ) SUBJECT: WHEN IS A CASE CONSIDERED MOOT AND ACADEMIC; EXCEPTIONS TO THE RULE THAT CASE SHOULD BE DISMISSED DUE TO MOOTNESS. (BRIEF TITLE: MENDOZA VS. COMELEC)

 

======================

 

 

DISPOSITIVE:

 

WHEREFORE, premises considered, the petition is hereby DISMISSED. The COMELEC Resolutions dated 18 September 2008 and 23 December 2009 in SPA (Brgy.) 07-243 are AFFIRMED.

            SO ORDERED.

========================

 

SUBJECTS/DOCTRINES/DIGEST:

 

 

PETITIONER MENDOZA RAN FOR BARANGAY CAPTAIN OF BARANGAY BALATASAN, ORIENTAL MINDORO IN THE OCTOBER 2007 BARANGAY ELECTIONS. RESPONDENT FAMILARA FILED DISQUALIFICATION CASE AGAINST MENDOZA ON THE GROUND THAT MENDOZA ALREADY SERVED THREE CONSECUTIVE TERMS AS PROVIDED BY LAW. MENDOZA COUNTERED THAT THE AMENDED LAW SHOULD NOT APPLY RETROACTIVELY. HOWEVER, NOW THAT THE CASE IS FOR RESOLUTION BY THE SUPREME COURT, THE TERM OF MENDOZA WHO WON IN THE ELECTION ALREADY EXPIRED. WILL THE SC STILL ENTERTAIN THE CASE?

 

 

NO. THE CASE IS ALREADY MOOT AND ACADEMIC. A CASE CAN BE DISMISSED DUE TO MOOTNESS.

 

Even without going into Mendoza’s penchant for filing confused petitions, the supervening event that is the conduct of the 2010 Barangay Elections renders this case moot and academic. The term of office for Barangay Captain of Balatasan for the 2007 Barangay Elections had long expired in 2010 following the last elections held on October 25 of the same year.

XXXXXXXXXXXXXXXX

 

WHAT IS A MOOT AND ACADEMIC CASE?

A moot and academic case is one that ceases to present a justiciable controversy by virtue of supervening events, so that a declaration thereon would be of no practical value. As a rule, courts decline jurisdiction over such case, or dismiss it on ground of mootness.[1][15]

XXXXXXXXXXXXXXXX

ARE THERE EXCEPTIONS TO THE RULE  THAT COURTS SHOULD DISMISS A CASE ON GROUND OF MOOTNESS?

 

 

YES. THESE ARE: (1) THERE IS GRAVE VIOLATION OF THE CONSTITUTION; (2) EXCEPTIONAL CHARACTER AND PARAMOUNT PUBLIC INTEREST; (3) CONSTITUTIONAL ISSUE RAISED REQUIRES FORMULATION OF CONTROLLING PRINCIPLE; (4) CASE IS CAPABLE OF REPETITION.

Certainly, the rule is not set in stone and permits exceptions. Thus, we may choose to decide cases otherwise moot and academic if: first, there is a grave violation of the Constitution; second, the exceptional character of the situation and the paramount public interest involved; third, the constitutional issue raised requires formulation of controlling principles to guide the bench, the bar and the public; or fourth, the case is capable of repetition yet evasive of review.[2][16] None of the foregoing exceptions calling for this Court to exercise jurisdiction obtains in this instance.

XXXXXXXXXXX

 

CITE AN EXAMPLE WHEN CASE WAS DISMISSED DUE TO MOOTNESS.

 

 

CASE OF MENDOZA VS. MAYOR VILLAS.

The justiciability of the present petition is further decimated by our recent ruling in Mendoza v. Mayor Villas:[3][17]

With the conduct of the 2010 barangay elections, a supervening event has transpired that has rendered this case moot and academic and subject to dismissal.  This is because, as stated in Fernandez v. Commission on Elections, “whatever judgment is reached, the same can no longer have any practical legal effect or, in the nature of things, can no longer be enforced.”  Mendoza‘s term of office has expired with the conduct of last year’s local elections. As such, Special Civil Action No. 08-10, where the assailed Orders were issued, can no longer prosper. Mendoza no longer has any legal standing to further pursue the case, rendering the instant petition moot and academic. (emphasis supplied)

XXXXXXXXXXXXX

 

IS THE ISSUE RAISED BY MENDOZA RE RETROACTIVITY OF THE 3 TERM RULE VALID?

 

 

NO. THE THREE TERM LIMIT HAD LONG BEEN SET BY LAW.

 

In any event, upon a perusal of the merits or lack thereof, the petition is clearly dismissible.

Our decision in COMELEC v. Cruz[4][18] settles, once and for all, the constitutionality of the three-consecutive term limit rule reckoned from the 1994 Barangay Elections. We unequivocally declared, thus:

 

The Retroactive Application Issue

 

          xxx

          Our first point of disagreement with the respondents and with the RTC is on their position that a retroactive application of the term limitation was made under RA No. 9164. Our own reading shows that no retroactive application was made because the three-term limit has been there all along as early as the second barangay law (RA No. 6679) after the 1987 Constitution took effect; it was continued under the [Local Government Code] and can still be found in the current law. We find this obvious from a reading of the historical development of the law.

          The first law that provided a term limitation for barangay officials was RA No. 6653 (1988); it imposed a two-consecutive term limit. After only six months, Congress, under RA No. 6679 (1988), changed the two-term limit by providing for a three-consecutive term limit. This consistent imposition of the term limit gives no hint of any equivocation in the congressional intent to provide a term limitation. Thereafter, RA No. 7160 – the LGC – followed, bringing with it the issue of whether it provided, as originally worded, for a three-term limit for barangay officials. We differ with the RTC analysis of this issue.

Section 43 is a provision under Title II of the LGC on Elective Officials. Title II is divided into several chapters dealing with a wide range of subject matters, all relating to local elective officials, as follows: a. Qualifications and Election (Chapter I); b. Vacancies and Succession (Chapter II); c. Disciplinary Actions (Chapter IV) and d. Recall (Chapter V). Title II likewise contains a chapter on Local Legislation (Chapter III).
          These Title II provisions are intended to apply to all local elective officials, unless the contrary is clearly provided. A contrary application is provided with respect to the length of the term of office under Section 43(a); while it applies to all local elective officials, it does not apply to barangay officials whose length of term is specifically provided by Section 43(c). In contrast to this clear case of an exception to a general rule, the three-term limit under Section 43(b) does not contain any exception; it applies to all local elective officials who must perforce include barangay officials.

          An alternative perspective is to view [Section] 43(a), (b) and (c) separately from one another as independently standing and self-contained provisions, except to the extent that they expressly relate to one another. Thus, [Section] 43(a) relates to the term of local elective officials, except barangay officials whose term of office is separately provided under Sec. 43(c). [Section] 43(b), by its express terms, relates to all local elective officials without any exception. Thus, the term limitation applies to all local elective officials without any exclusion or qualification.

          Either perspective, both of which speak of the same resulting interpretation, is the correct legal import of Section 43 in the context in which it is found in Title II of the LGC.

                                      xxx

          All these inevitably lead to the conclusion that the challenged proviso has been there all along and does not simply retroact the application of the three-term limit to the barangay elections of 1994. Congress merely integrated the past statutory changes into a seamless whole by coming up with the challenged proviso.

          With this conclusion, the respondents’ constitutional challenge to the proviso—based on retroactivity—must fail.[5][19]

 

======================

 

EN BANC

 

CONSTANCIO F. MENDOZA,Petitioner,   

 

 

 

 

 

             

 

 

– versus –

 

 

 

 

 

 

 

 

SENEN C. FAMILARA and COMMISSION ON ELECTIONS,

Respondents.

    G.R. No. 191017Present: 

CORONA, C.J.,

CARPIO,

VELASCO, JR.,

LEONARDO-DE CASTRO,*

BRION,

PERALTA,

BERSAMIN,

DEL CASTILLO,

ABAD,

VILLARAMA, JR.,

PEREZ,

MENDOZA,

SERENO,

REYES, and

PERLAS-BERNABE, JJ.

Promulgated:

November 15, 2011

x—————————————————————————————–x

 

RESOLUTION

PEREZ, J.:

 

 

This petition raises a far from novel issue, i.e., the constitutionality of Section 2[6][1] of Republic Act No. 9164 (entitled “An Act Providing for Synchronized Barangay and Sangguniang Kabataan Elections, amending RA No. 7160, as amended, otherwise known as the Local Government Code of 1991″). As other barangay officials had done in previous cases,[7][2] petitioner Constancio F. Mendoza (Mendoza) likewise questions the retroactive application of the three-consecutive term limit imposed on barangay elective officials beginning from the 1994 barangay elections.

We here have a special civil action, designated by Mendoza as a “petition for review on certiorari under Rule 64 in relation to Rule 65 of the Rules of Court,” seeking to annul and set aside the Resolution[8][3] of the Commission on Elections (COMELEC) En Banc.

Mendozawas a candidate for Barangay Captain of Barangay Balatasan, Oriental Mindoro in the 29 October 2007 Barangay Elections. As required by law, Mendoza filed a certificate of candidacy. Prior thereto, Mendoza had been elected as Barangay Captain of Barangay Balatasan for three (3) consecutive terms, on 9 May 1994, 12 May 1997 and 15 July 2002.

On 26 October 2007, respondent Senen C. Familara (Familara) filed a Petition to Disqualify Mendoza averring that Mendoza, under Section 2 of RA No. 9164, is ineligible to run again for Barangay Captain of Barangay Balatasan, having been elected and having served, in the same position for three (3) consecutive terms immediately prior to the 2007 Barangay Elections.

Posthaste, Mendozafiled his Answer[9][4] refuting Familara’s allegations and asseverating the following:

1.         That he has the qualifications and none of the disqualification to vote and be voted for in the October 29, 2007 Barangay Elections for Barangay Balatasan, Bulalacao, Oriental Mindoro;

2.         [He] further AFFIRMS that he has duly-filed his Certificate of Candidacy for Punong Barangay of Barangay Balatasan, Bulalacao, Oriental Mindoro;

3.         [He] RAISES THE QUESTION of the legal personality of [respondent Senen] Familara because:

  1. He is not a party in interest in the Barangay Elections for Punong Barangay at Barangay Balatasan;
  2. He is not a resident nor registered voter of Barangay Balatasan;
  3. He is not a candidate to any elective position for Barangay Balatasan in the scheduled October 29, 2007 Barangay Elections;

4.         That while the proper party in interest to file a petition for disqualification is any registered voter of Barangay Balatasan, the instant petition is intended to benefit the only other candidate for Punong Barangay for Balatasan in the forthcoming elections, TOMAS PAJANEL, but said person is a permanent resident not only of a Barangay different from Barangay Balatasan but worse, said person is a permanent resident of Bulalacao’s adjoining town, Mansalay;

                                    xxx

6.         The petition suffers from legal infirmities;

                                    xxx

            The present petition is premature. It should be filed within ten (10) days from proclamation of election results.

            Further, [Senen] Familara is not a proper party to file the petition. It must be filed by a candidate who has duly filed a certificate of candidacy and has been voted for the same office.

            Finally, the petition was filed before the wrong forum. It must be filed before the Municipal Trial Court. The COMELEC has the exclusive appellate jurisdiction over all contests x x x involving elective barangay officials decided by trial courts of limited jurisdiction.

On 13 November 2007, the Commission on Elections (COMELEC) Assistant Regional Election Director of Region IV, Atty. Jocelyn V. Postrado, issued a Resolution[10][5] recommending that necessary action be filed against Mendoza for misrepresenting himself as a qualified candidate for the position of Barangay Captain of Balatasan:

RESOLUTION/RECOMMENDATION

 

            Pursuant to the delegated authority vested to the undersigned by the Omnibus Election Law and other election laws and after issuing the necessary summons to MR. CONSTANCIO F. MENDOZA on the above Petition for Disqualification filed by Mr. Senen C, Familara, which to no avail this office until now has not yet received the required affidavits from Mr. Mendoza, and wherein by said act and under our COMELEC Rules of Procedure, he is deemed to have expressly waived his right to present evidence in his defense. xxx

            Ruling on the submitted petition and supporting evidence, we find Mr. Mendoza to have completed the three (3) term-limit and yet, still ran for office knowing that he was prohibited. Please find a copy of the Certification issued by the Office of the Election Officer, Bulalacao, Oriental Mindoro verifying that Mr. Mendoza filed a Certificate of Candidacy for the position of Punong Barangay. His act of misrepresenting himself as qualified to run for the said position of Punong Barangay at Balatasan, Municipality of Bulalacao, Province of Oriental Mindoro in the 29 October 2007 Barangay Elections, is in violation of Section 2 of Republic Act No. 9164, the Omnibus election Law and other election laws.

            WHEREFORE, premises considered, the undersigned hereby recommends that necessary action be filed against MR. CONSTANCIO F. MENDOZA.

Undaunted, Mendoza filed a flurry of motions: (1) an Ex-Parte Motion to Recall;[11][6] (2) Ex-Parte Motion to Dismiss;[12][7] and (3) Ex-Parte Motion to Resolve,[13][8] all aiming to forestall the implementation of the          13 November 2007 Resolution of the COMELEC Assistant Regional Election Director of Region IV, Atty. Postrado, and the continuation of the Petition for Disqualification filed by Familara againstMendoza.

In another turn of events, Mendozawon in the elections; he was proclaimed Barangay Captain of Balatasan.

Consequently, Mendoza’s rival, Thomas Pajanel, filed a petition for quo warranto and mandamus against Mendoza before the Municipal Circuit Trial Court (MCTC) of Mansalay-Bulalacao docketed as Election Case No. 407-B. Pajanel contended that Mendoza is ineligible to occupy the position of Barangay Captain of Balatasan, having been elected and having already served as such for three (3) consecutive terms.

In yet another setback, the MCTC promulgated its Decision and disqualifiedMendozain accordance with the three-consecutive term rule provided in Section 2 of RA No. 9164. Not unexpectedly,Mendozaappealed the MCTC Decision before the COMELEC. The appeal is docketed as EAC (BRGY) No. 101-2008 and is pending before the COMELEC Second Division.

On the other litigation front concerning the Petition for Disqualification filed by Familara against Mendoza, the COMELEC First Division issued a Resolution[14][9] agreeing with the recommendation of the COMELEC Assistant Regional Election Director of Region IV that Mendoza is disqualified from running as Barangay Captain of Balatasan under the three-consecutive term limit rule. The COMELEC shot downMendoza’s technical objections to the Petition for Disqualification, to wit:

            [Mendoza’s] contentions that the petition [for disqualification] should be dismissed as [Familara] lacks the personality to file the said petition since the latter is neither a candidate nor a registered voter of Barangay Balatasan, Municipality of Bulalacao, that it was prematurely filed and was filed before a wrong forum are untenable.

            It is undisputed that the instant case is a Petition for Disqualification involving barangay officials, hence, Section 11 in relation to Section 10 of COMELEC Resolution No. 8297 issued on September 6, 2007 is the applicable rule with respect to the qualifications of [Mendoza], period of filing and the tribunal to file the same.

            Section 11 in relation to Section 10 of COMELEC Resolution No. 8297 provides that:

            Sec. 10.           Petition to deny due course to or cancellation of a certificate of candidacy. – A verified petition to deny due course to or cancel a certificate of candidacy pursuant to Sec. 69 (nuisance candidate) or Sec. 78 (material misrepresentation in the certificate of candidacy) of the Omnibus Election Code shall be filed directly with the office of Provincial Election Supervisor concerned by any registered candidate for the same office personally or through a duly-authorized representative within five (5) days from the last day for filing of certificate of candidacy. In the National Capital Region, the same be filed directly with the Office of the Regional Election Director.

            In the Provinces where the designated Provincial Election Supervisor is not a lawyer the petition shall be filed with the Regional Election Director concerned.

            Filing by mail is not allowed.

            Within twenty four (24) hours from receipt of the petition, the Provincial Election Supervisor or the Regional Election Director of the National Capital Region, as the case may be, shall issue the corresponding summons requiring the respondent candidate to answer the petition within three (3) days from receipt. Immediately upon receipt of the answer, the petition shall be set for hearing for the reception of evidence of the parties but not later than five (5) days from the service of summons. The Resolution of the Hearing Officer shall be submitted to the Commission through the Clerk of the Commission within fifteen (15) days from receipt of the petition.

            Sec. 11.           Petition for Disqualification. A verified petition to disqualify a candidate on the ground of ineligibility or under Section 68 of the Omnibus Election Code may be filed at anytime before proclamation of the winning candidate by any registered voter or any candidate for the same office. The procedure prescribed in the preceding section shall be applicable herein.

            xxx

            All disqualification cases filed on the ground of ineligibility shall continue although the candidate has already been proclaimed.

            Applying the above-cited provisions in the case at bar, it only requires the petitioner to be a registered voter for him to acquire locus standi to file the instant petition. Further, it provides that a petition for disqualification must be filed at any time before the proclamation of the winning candidate. Furthermore, it also requires that the said petition must be filed with the Provincial Election Supervisor or Regional Election Director, as the case may be. It is clear that in the present case these requirements under the above-cited provisions of the law have been complied.

WHEREFORE, in view of the foregoing, the Commission (First Division) GRANTS the Petition. [Petitioner], Constancio Farol Mendoza, having already served as Punong Barangay of Barangay Balatasan, Bulalacao, Oriental Mindoro for three consecutive terms is hereby DISQUALIFIED from being a candidate for the same office in the October 29, 2007 Synchronized Barangay and Sangguniang Kabataan Elections. Considering that [Mendoza] had already been proclaimed, said proclamation is hereby ANNULLED. Succession to said office shall be governed by the provisions of Section 44 of the Local Government Code.[15][10]

Mendozafiled a Motion to Recall Resolution, to Dismiss the Case and to Conduct Appropriate Investigation to Determine Criminal and Administrative Liability[16][11] before the COMELEC En Banc, seeking the reversal of the Resolution of the COMELEC First Division.

In a Resolution[17][12] dated 23 December 2009, the COMELEC En Banc denied the Motion to Recall for lack of merit. It dismissedMendoza’s arguments, thus:

            It appears from Section 10 of Resolution No. 8297 that the [COMELEC] has indeed jurisdiction to entertain this petition in the first place. The petition was filed on September 23, 2007, or less than five days from the last day of filing the certificates of candidacy for the position of Punong Barangay. The assistant Regional Director proceeded to issue subpoena, and thereafter, submitted her Resolution/Recommendation which was forwarded to the [COMELEC] for appropriate action through the Clerk of the [COMELEC].

            The records of the case would reveal that this petition has run its normal course. The allegation ofMendozathat he was allegedly deprived of due process is of no avail. It appears from the registry return receipt attached to the records of the case that summons were duly received by Mendoza on October 24, 2007, as such, he is bound to answer the allegations of the petition within three days from receipt. Failing in this respect,Mendozais said to have waived his right to file his answer within the time given by the Rules.

            Furthermore, we cannot subscribe to the argument ofMendozathat the pendency of the proceedings before the Second Division docketed as EAC (Brgy) 101-2008 would merit the dismissal of this petition.

            xxx

            The Supreme Court held in the case of Sunga vs. COMELEC, and Lonzanida v. COMELEC, that:

“This court has held that the clear legislative intent is that the COMELEC should continue the trial and hearing of the disqualification case to its conclusion, i.e., until judgment is rendered. The outright dismissal of the petition for disqualification filed before the election but which remained unresolved after the proclamation of the candidate sought to be disqualified will unduly reward the said candidate and may encourage him to employ delaying tactics to impede the resolution of the petition until after he has been proclaimed.”

            Considering that [the COMELEC] is tasked with the duty to continue with the trial and hearing of the disqualification case of Mendozato its conclusion despite the pendency of EAC (Brgy) No. 101-2008, then there is no cogent reason to disturb the Resolution of the First Division dated September 18, 2008.[18][13]

          Unperturbed, Mendozafiled the instant petition alleging grave abuse of discretion in the 23 December 2009 Resolution of the COMELEC En Banc. Mendoza insists that the disqualification case should have been dismissed, or, at the least, consolidated with the quo warranto case on appeal before the COMELEC Second Division because the latter case stems from a judicial proceeding which “followed strictly the requirements of law and the rules.” Mendoza then blithely puts in issue the constitutionality of the retroactive application to the 1994 Barangay Elections of the three-consecutive term limit rule. For good measure, Mendoza asserts denial of due process as would invalidate the disqualification proceedings against him and his resulting disqualification from the race for Barangay Captain of Balatasan.

The jettisoning of the petition is inevitable: the holding of the October 2010 Barangay Elections makes the issues posed by petitioner moot and academic.

Before anything else, we note the apparent mix-up in Mendoza’s designation of the present petition. He alleged grave abuse of discretion, but incorrectly specified in the prefatory statement of the petition that it is a “petition for review on certiorari.”

For clarity and to obviate confusion, we treat the instant petition as one filed under Rule 64 in relation to Rule 65 of the Rules of Court since the totality of the allegations contained therein seek to annul and set aside the Resolution of the COMELEC en banc because it is tainted with grave abuse of discretion amounting to lack or excess of jurisdiction. As we have also noted in Mendoza v. Mayor Villas,[19][14] another case filed byMendoza before us whereMendoza did not specify under which Rule (45 or 65) his petition was being filed, this Court has the discretion to determine whether a petition was filed under Rule 45 or 65 of the Rules of Court.

Even without going into Mendoza’s penchant for filing confused petitions, the supervening event that is the conduct of the 2010 Barangay Elections renders this case moot and academic. The term of office for Barangay Captain of Balatasan for the 2007 Barangay Elections had long expired in 2010 following the last elections held on October 25 of the same year.

A moot and academic case is one that ceases to present a justiciable controversy by virtue of supervening events, so that a declaration thereon would be of no practical value. As a rule, courts decline jurisdiction over such case, or dismiss it on ground of mootness.[20][15]

Certainly, the rule is not set in stone and permits exceptions. Thus, we may choose to decide cases otherwise moot and academic if: first, there is a grave violation of the Constitution; second, the exceptional character of the situation and the paramount public interest involved; third, the constitutional issue raised requires formulation of controlling principles to guide the bench, the bar and the public; or fourth, the case is capable of repetition yet evasive of review.[21][16] None of the foregoing exceptions calling for this Court to exercise jurisdiction obtains in this instance.

The justiciability of the present petition is further decimated by our recent ruling in Mendoza v. Mayor Villas:[22][17]

With the conduct of the 2010 barangay elections, a supervening event has transpired that has rendered this case moot and academic and subject to dismissal.  This is because, as stated in Fernandez v. Commission on Elections, “whatever judgment is reached, the same can no longer have any practical legal effect or, in the nature of things, can no longer be enforced.”  Mendoza‘s term of office has expired with the conduct of last year’s local elections. As such, Special Civil Action No. 08-10, where the assailed Orders were issued, can no longer prosper. Mendoza no longer has any legal standing to further pursue the case, rendering the instant petition moot and academic. (emphasis supplied)

In any event, upon a perusal of the merits or lack thereof, the petition is clearly dismissible.

Our decision in COMELEC v. Cruz[23][18] settles, once and for all, the constitutionality of the three-consecutive term limit rule reckoned from the 1994 Barangay Elections. We unequivocally declared, thus:

 

The Retroactive Application Issue

 

            xxx

            Our first point of disagreement with the respondents and with the RTC is on their position that a retroactive application of the term limitation was made under RA No. 9164. Our own reading shows that no retroactive application was made because the three-term limit has been there all along as early as the second barangay law (RA No. 6679) after the 1987 Constitution took effect; it was continued under the [Local Government Code] and can still be found in the current law. We find this obvious from a reading of the historical development of the law.

            The first law that provided a term limitation for barangay officials was RA No. 6653 (1988); it imposed a two-consecutive term limit. After only six months, Congress, under RA No. 6679 (1988), changed the two-term limit by providing for a three-consecutive term limit. This consistent imposition of the term limit gives no hint of any equivocation in the congressional intent to provide a term limitation. Thereafter, RA No. 7160 – the LGC – followed, bringing with it the issue of whether it provided, as originally worded, for a three-term limit for barangay officials. We differ with the RTC analysis of this issue.

Section 43 is a provision under Title II of the LGC on Elective Officials. Title II is divided into several chapters dealing with a wide range of subject matters, all relating to local elective officials, as follows: a. Qualifications and Election (Chapter I); b. Vacancies and Succession (Chapter II); c. Disciplinary Actions (Chapter IV) and d. Recall (Chapter V). Title II likewise contains a chapter on Local Legislation (Chapter III).
            These Title II provisions are intended to apply to all local elective officials, unless the contrary is clearly provided. A contrary application is provided with respect to the length of the term of office under Section 43(a); while it applies to all local elective officials, it does not apply to barangay officials whose length of term is specifically provided by Section 43(c). In contrast to this clear case of an exception to a general rule, the three-term limit under Section 43(b) does not contain any exception; it applies to all local elective officials who must perforce include barangay officials.

            An alternative perspective is to view [Section] 43(a), (b) and (c) separately from one another as independently standing and self-contained provisions, except to the extent that they expressly relate to one another. Thus, [Section] 43(a) relates to the term of local elective officials, except barangay officials whose term of office is separately provided under Sec. 43(c). [Section] 43(b), by its express terms, relates to all local elective officials without any exception. Thus, the term limitation applies to all local elective officials without any exclusion or qualification.

            Either perspective, both of which speak of the same resulting interpretation, is the correct legal import of Section 43 in the context in which it is found in Title II of the LGC.

                                                xxx

            All these inevitably lead to the conclusion that the challenged proviso has been there all along and does not simply retroact the application of the three-term limit to the barangay elections of 1994. Congress merely integrated the past statutory changes into a seamless whole by coming up with the challenged proviso.

            With this conclusion, the respondents’ constitutional challenge to the proviso—based on retroactivity—must fail.[24][19]

            WHEREFORE, premises considered, the petition is hereby DISMISSED. The COMELEC Resolutions dated 18 September 2008 and 23 December 2009 in SPA (Brgy.) 07-243 are AFFIRMED.

            SO ORDERED.

                                                JOSE PORTUGAL PEREZ

                                                Associate Justice

         

 

 

WE CONCUR:

RENATO C. CORONA

Chief Justice

 

 

 

ANTONIO T. CARPIO

Associate Justice

 

 

PRESBITERO J. VELASCO, JR.

Associate Justice

 

(on official leave)

TERESITA J. LEONARDO-DE CASTRO

Associate Justice

 

 

 

ARTURO D. BRION

Associate Justice

 

 

 

DIOSDADO M. PERALTA

Associate Justice

 

 

 

LUCAS P. BERSAMIN

Associate Justice

 

 

 

MARIANO C. DEL CASTILLO

Associate Justice

 

 

 

ROBERTO A. ABAD

Associate Justice

 

 

 

MARTIN S. VILLARAMA, JR.

Associate Justice

 

 

 

JOSE CATRAL MENDOZA

Associate Justice

 

 

 

MARIA LOURDES P. A. SERENO                          BIENVENIDO L. REYES

            Associate Justice                                                       Associate Justice

 

 

 

ESTELA M. PERLAS-BERNABE

Associate Justice

 

 

 

C E R T I F I C A T I O N

          Pursuant to Section 13, Article VIII of the Constitution, I certify that the conclusions in the above decision had been reached in consultation before the case was assigned to the writer of the opinion of the Court.

 

                                                RENATO C. CORONA

                                                Chief Justice

 



[1][15]          Gunsi v. COMELEC, G.R. No. 168792, 23 February 2009, 580 SCRA 70, 76.

[2][16]          David v. Macapagal-Arroyo, G.R. Nos. 171396, 171409, 171485, 171483, 171400, 171489,      171424, 3 May 2006, 489 SCRA 160, 214-215.

[3][17]          Supra note 14.

[4][18]          G.R. No. 186616, 20 November 2009, 605 SCRA 167.

[5][19]         Id. at 183-185, 189.

*              On official leave.

[6][1]                           Sec. 2.     Term of Office. –The term of office of all barangay and sangguniang kabataan    officials after the effectivity of this Act shall be three (3) years.

                                No barangay elective official shall serve for more than three (3) consecutive terms in the    same position: Provided, however, That the term of office shall be reckoned from the 1994            barangay elections. Voluntary renunciation of office for any length of time shall not be              considered as an interruption in the continuity of service for the full term for which the elective        official was elected. (Emphasis supplied)

[7][2]           See COMELEC v. Cruz, G.R. No. 186616, 20 November 2009, 605 SCRA 167; Monreal v.      COMELEC, G.R. No. 184935, 21 December 2009, 608 SCRA 717.

[8][3]           Dated 23 December 2009, rollo pp. 34-39.

[9][4]          Id. at 40-44.

[10][5]         Id. at 46.

[11][6]         Id. at 47-49.

[12][7]         Id. at 50-51.

[13][8]         Id. at 52-56.

[14][9]          Dated 18 September 2008, rollo, pp. 28-33.

[15][10]        Id. at 31-33.

[16][11]        Id. at 57-63.

[17][12]        Id. at 34-39.

[18][13]        Id. at 36-38.

[19][14]         G.R. No. 187256, 23 February 2011.

[20][15]         Gunsi v. COMELEC, G.R. No. 168792, 23 February 2009, 580 SCRA 70, 76.

[21][16]         David v. Macapagal-Arroyo, G.R. Nos. 171396, 171409, 171485, 171483, 171400, 171489,      171424, 3 May 2006, 489 SCRA 160, 214-215.

[22][17]         Supra note 14.

[23][18]         G.R. No. 186616, 20 November 2009, 605 SCRA 167.

[24][19]        Id. at 183-185, 189.

CASE 2011-0216: MONICO K. IMPERIAL, JR. VS. GOVERNMENT SERVICE INSURANCE SYSTEM (G.R. NO. 191224, 04 OCTOBER 2011, BRION, J.) SUBJECTS: GRAVE MISCONDUCT; SIMPLE MISCONDUCT, PROCEDURAL DUE PROCESS; PENALTIES FOR MISCONDUCT; EXAMPLES OF CLEAR DEFIANCE OF THE LAW AND PROCEDURES (BRIEF TITLE: IMPERIAL VS. GSIS)

 

==================

 

DISPOSITIVE:

 

WHEREFORE, premises considered, we PARTIALLY GRANT the petition for review on certiorari and MODIFY the assailed decision and resolution of the Court of Appeals. Petitioner Monico K. Imperial, Jr. is found GUILTY of SIMPLE MISCONDUCT and is hereby SUSPENDED from the time the preventive suspension that GSIS imposed lapsed, up to the finality of this Decision. 

 

==================

 

SUBJECTS/DOCTRINES/DIGESTS

 

 

PETITIONER GSIS NAGA CITY BRANCH MANAGER IMPERIAL APPROVED GSIS LOANS DESPITE LACK OF REQUIREMENTS. HE AND HIS COUNSEL FAILED TO APPEAR DURING AN ADMINISTRATIVE HEARING, NOTICE OF WHICH WAS ONLY RECEIVED BY COUNSEL THROUGH FAX. ALSO, COUNSEL’S ANSWER WAS NOT VERIFIED. AFTER THE HEARING, PETITIONER WAS DEEMED TO HAVE WAIVED HIS RIGHT TO HEARING. HIS ANSWER WAS ALSO EXPUGNED FROM THE RECORDS FOR BEING UNVERIFIED. GSIS RULED HE COMMITTED GRAVE MISCONDUCT AND IMPOSED THE PENALTY OF DISMISSAL. WAS PETITIONER DEPRIVED OF PROCEDURAL DUE PROCESS?

 

 

NO BECAUSE THE GSIS DECISION CONSIDERED THE POINTS HE RAISED IN HIS ANSWER. HE WAS HEARD THROUGH HIS PLEADINGS. ALSO, BY FILING A MOTION FOR RECONSIDERATION HE IS DEEMED TO HAVE WAIVED HIS RIGHT UNDER PROCEDURAL DUE PROCESS.

 

 

XXXXXXXXXXXXXXXXX

 

 

PETITIONER WAS ADJUDGED BY GSIS, SSC AND CA AS GUILTY OF GRAVE MISCONDUCT? WAS THIS RULING CORRECT?

 

 

NO. NO SUBSTANTIAL EVIDENCE WAS ADDUCED TO SUPPORT THE ELEMENTS OF “CORRUPTION,” “CLEAR INTENT TO VIOLATE THE LAW” OR “FLAGRANT DISREGARD OF ESTABLISHED RULE” THAT MUST BE PRESENT TO CHARACTERIZE THE MISCONDUCT AS GRAVE.

 

 

PETITIONER ONLY COMMITTED SERIOUS LAPSE OF JUDGMENT SUFFICIENT TO HOLD HIM LIABLE FOR SIMPLE MISCONDUCT.

 

 

Thus, the petitioner’s liability under the given facts only involves simple misconduct. As Branch Manager of the GSIS Naga Field Office, he is presumed to know all existing policies, guidelines and procedures in carrying out the agency’s mandate in the area.  By  approving the loan applications of eight GSIS Naga Field Office employees who did not fully meet the required qualifications, he committed a serious lapse of judgment sufficient to hold him liable for simple misconduct.

 

 

XXXXXXXXXXXXXXXX

 

 

BUT PETITIONER COMMITTED SUCH OFFENSE TWICE ALREADY. CAN HE BE NOT CONSIDERED TO HAVE COMMITTED “FLAGRANT DISREGARD OF ESTABLISHED RULE”?

 

 

NO. THERE MUST BE DELIBERATE DEFIANCE OF THE RULES. THE CSC’S FINDINGS ON THE PETITIONER’S ACTIONS PRIOR TO THE APPROVAL OF THE LOANS NEGATE THE PRESENCE OF ANY INTENT ON THE PETITIONER’S PART TO DELIBERATELY DEFY THE POLICY OF THE GSIS. FIRST, GSIS BRANCH MANAGERS HAVE BEEN GRANTED IN THE PAST THE AUTHORITY TO APPROVE LOAN APPLICATIONS BEYOND THE PRESCRIBED REQUIREMENTS OF GSIS; SECOND, THERE WAS A CUSTOMARY LENIENT PRACTICE IN THE APPROVAL OF LOANS EXERCISED BY SOME BRANCH MANAGERS NOTWITHSTANDING THE EXISTING GSIS POLICY; AND THIRD, THE PETITIONER FIRST SOUGHT THE APPROVAL OF HIS IMMEDIATE SUPERVISOR BEFORE ACTING ON THE LOAN APPLICATIONS. THESE CIRCUMSTANCES RUN COUNTER TO THE CHARACTERISTIC FLAGRANT DISREGARD OF THE RULES THAT GRAVE MISCONDUCT REQUIRES. 

 

 

XXXXXXXXXXXXXXX

 

 

WHAT IS PROCEDURAL DUE PROCESS?

 

 

IT IS THE CONSTITUTIONAL STANDARD DEMANDING THAT NOTICE AND AN OPPORTUNITY TO BE HEARD BE GIVEN BEFORE JUDGMENT IS RENDERED.

 

Procedural due process is the constitutional standard demanding that notice and an opportunity to be heard be given before judgment is rendered. As long as a party is given the opportunity to defend his interests in due course, he would have no reason to complain; the essence of due process is in the opportunity to be heard.[1][17] A formal or trial-type hearing is not always necessary.

 

        In this case, while the petitioner did not participate in the August 17, 2006 pre-hearing conference (despite receipt on August 14, 2006 of a fax copy of the August 11, 2006 order), Garcia’s decision of February 21, 2007 duly considered and discussed the defenses raised in Atty. Molina’s pleadings, although the answer was ordered expunged from the records because it was unverified and because Atty. Molina failed to submit a letter of authority to represent the petitioner.

 

What negates any due process infirmity is the petitioner’s subsequent motion for reconsideration which cured whatever defect the Hearing Officer might have committed in the course of hearing the petitioner’s case.[2][18] Again, Garcia duly considered the arguments presented in the petitioner’s motion for reconsideration when he rendered the June 6, 2007 resolution.[3][19]  Thus, the petitioner was actually heard through his pleadings.

 

 

XXXXXXXXXXXXXXXX

 

 

WHAT IS MISCONDUCT?

 

 

AN INTENTIONAL WRONGDOING OR A DELIBERATE VIOLATION OF A RULE OF LAW OR STANDARD OF BEHAVIOR.

 

 

XXXXXXXXXXXXX

 

 

WHEN IS MISCONDUCT GRAVE?

 

 

A MISCONDUCT IS GRAVE WHERE THE ELEMENTS OF CORRUPTION, CLEAR INTENT TO VIOLATE THE LAW OR FLAGRANT DISREGARD OF ESTABLISHED RULE ARE PRESENT.[4][21] OTHERWISE, A MISCONDUCT IS ONLY SIMPLE.

 

 

Misconduct has a legal and uniform definition. Misconduct has been defined as an intentional wrongdoing or a deliberate violation of a rule of law or standard of behavior, especially by a government official.[5][20] A misconduct is grave where the elements of corruption, clear intent to violate the law or flagrant disregard of established rule are present.[6][21] Otherwise, a misconduct is only simple.

 

 

XXXXXXXXXXXXXXXXX

 

 

GIVE EXAMPLES OF JURISPRUDENCE WHEN THERE HAS BEEN OPEN DEFIANCE OF A CUSTOMARY RULE.

 

 

AS FOLLOWS:

 

Flagrant disregard of rules is a ground that jurisprudence has already touched upon. It has been demonstrated, among others, in the instances when there had been open defiance of a customary rule;[7][23] in the repeated voluntary disregard of established rules in the procurement of supplies;[8][24] in the practice of illegally collecting fees more than what is prescribed for delayed registration of marriages;[9][25] when several violations or disregard of regulations governing the collection of government funds were committed;[10][26] and when the employee arrogated unto herself responsibilities that were clearly beyond her given duties.[11][27] The common denominator in these cases was the employee’s propensity to ignore the rules as clearly manifested by his or her actions.

 

 

XXXXXXXXXXXXXXX

 

 

WHAT IS THE PENALTY FOR SIMPLE MISCONDUCT?

 

 

SUSPENSION FOR ONE MONTH AND ONE DAY TO SIX MONTHS FOR THE FIRST OFFENSE AND DISMISSAL FOR THE SECOND OFFENSE.

 

 

XXXXXXXXXXXXX

 

 

BUT PETITIONER HAS COMMITTED THE OFFENSE TWICE. WHY SHOULD HIS PENALTY BE NOT DISMISSAL?

 

 

BECAUSE IT IS NOT PROPORTIONATE TO THE NATURE AND EFFECT OF HIS TRANSGRESSION.

 

 

The Revised Uniform Rules of the Civil Service (Civil Service Rules) classifies simple misconduct as a less grave offense.  Under Section 52(B) (2), Rule IV of the Civil Service Rules, the commission of simple misconduct is penalized by suspension for one (1) month and one (1) day to six (6) months for the first offense, and dismissal from the service for the second offense. While records show that this is not the petitioner’s first offense as he was previously suspended for one (1) year for neglect of duty, we believe that his dismissal would be disproportionate to the nature and effect of the transgression he committed as the GSIS did not suffer any prejudice through the loans he extended; these loans were for GSIS employees and were duly paid for. Thus, for his second simple misconduct, we impose on the petitioner the penalty of suspension from the lapse of his preventive suspension by GSIS up to the finality of this Decision.[12][28]

 

==================

 

 

Republic of thePhilippines

Supreme Court

Manila

 

EN BANC

 

 

 

MONICO K. IMPERIAL, JR.,

Petitioner,   

 

 

 

 

                                     

 

 

 

                 – versus –

 

 

 

 

 

 

 

 

GOVERNMENT SERVICE INSURANCE SYSTEM,

Respondent.

 

 

 

G.R. No. 191224

 

Present:

 

CORONA, C.J.,

CARPIO,

VELASCO, JR.,

LEONARDO-DE CASTRO,

BRION,

PERALTA,

BERSAMIN,

DEL CASTILLO,

ABAD,

VILLARAMA, JR.,

PEREZ,

MENDOZA,

SERENO,

REYES, and

PERLAS-BERNABE, JJ.

 

Promulgated:

 

October 4, 2011

x—————————————————————————————–x

 

 

D E C I S I O N

 

BRION, J.:

 

 

We resolve the petition for review on certiorari,[13][1] filed by petitioner Monico K. Imperial, Jr., from the December 10, 2009 decision[14][2] and the February 5, 2010 resolution[15][3] of the Court of Appeals (CA) in CA-G.R. SP No. 101297.

 

The Factual Antecedents

 

          On October 19, 2005, the Government Service Insurance System (GSIS) administratively charged the petitioner, then Branch Manager of the GSIS Naga Field Office, with Dishonesty, Grave Misconduct and Conduct Prejudicial to the Best Interest of the Service[16][4] for approving the requests for salary loans of eight GSIS Naga Field Office employees who lacked the contribution requirements under GSIS Policy and Procedural Guidelines (PPG) No. 153-99,[17][5] giving them unwarranted benefits through his evident bad faith, manifest partiality or gross negligence, and causing injury to the pension fund.[18][6] He was required to answer and was preventively suspended for ninety (90) days.

 

On July 21, 2006, Atty. Manuel T. Molina, the petitioner’s purported counsel, filed an unverified answer in behalf of the petitioner, who was then in theUnited States of America.  Atty. Molina explained that the petitioner granted the loan applications under an existing board resolution, with the approval of then GSIS Vice President Romeo Quilatan; the loans were fully paid, without causing any prejudice to the service.

 

          In a July 26, 2006order,[19][7]  Hearing Officer Violeta C.F. Quintos set the pre-hearing conference on August 17, 2006 at the GSIS Legazpi Field Office. A week later, in an August 2, 2006 order,[20][8] the Hearing Officer modified her previous order and set the venue at the GSIS Naga Field Office.

 

Atty. Molina filed a motion for reconsideration, pointing out that the GSIS Rules of Procedure set the venue of pre-hearing conferences at the GSIS Main Office in PasayCity. The Hearing Officer denied the motion for reconsideration in her August 11, 2006order,[21][9] stating that the prosecution requested the change of venue. Copies of the order were duly sent via fax and regular mail. Atty. Molina received the faxed copy on August 14, 2006, while he received the registered mail on August 18, 2006.

 

          At the scheduled August 17, 2006pre-hearing conference, the petitioner and Atty. Molina failed to appear. Atty. Molina likewise failed to submit the petitioner’s verification of the answer and to submit a letter of authority to represent the petitioner in the case. On the prosecution’s motion, the Hearing Officer declared the petitioner to have waived his right to file his answer and to have a formal investigation of his case, and expunged the unverified answer and other pleadings filed by Atty. Molina from the records. The case was then submitted for resolution based on the prosecution’s submitted documents.[22][10]

 

          GSIS President and General Manager Winston F. Garcia found the petitioner guilty of grave misconduct and conduct prejudicial to the best interest of the service.[23][11] He noted that the evidence presented by the prosecution clearly showed that the petitioner’s approval of the requests for salary loans of eight GSIS Naga Field Office employees was improper because they lacked the contribution requirements under PPG No. 153-99. He also noted that the pleadings filed by Atty. Molina, as the petitioner’s purported counsel, were expunged from the records, but he, nonetheless, discussed the defenses raised in these pleadings and found them unmeritorious.

Noting that this was the petitioner’s second administrative offense (he had previously been suspended for one [1] year for gross neglect of duty for failing to implement the recommendations of the Internal Audit Services Group pertaining to the handling of returned-to-sender checks, resulting in a GSIS Naga Field Office Cashier defrauding the GSIS of checks), Garcia imposed the penalty of dismissal with the accessory penalties of forfeiture of retirement benefits, cancellation of eligibility and perpetual disqualification from re-employment in the government. On the same date, the GSIS Board of Trustees approved the decision.[24][12]

 

In a June 6, 2007 resolution,[25][13] Garcia denied the petitioner’s motion for reconsideration, noting that Atty. Molina had no authority to appear for and in behalf of the petitioner, having failed to submit any formal written authority; that the petitioner’s answer was unverified; and that, in any event, the petitioner had no evidence sufficient to overturn the evidence presented by the prosecution. 

 

The petitioner appealed to the Civil Service Commission (CSC), reiterating his arguments of denial of due process and the lack of evidence against him.

 

          The CSC rejected the petitioner’s claim of due process violation, finding that the petitioner’s filing of a motion for reconsideration cured whatever procedural due process defect there might have been.[26][14]  It noted that the records of the case showed that the petitioner approved the loan applications despite the patent ineligibility of the loan applicants. The CSC thus affirmed the petitioner’s dismissal for grave misconduct, but added as an accessory penalty the prohibition from taking any civil service examination.

 

The petitioner elevated his case to the CA through a petition for review under Rule 43 of the Rules of Court.

 

          In its December 10, 2009decision,[27][15]  the CA dismissed the petition, and denied the subsequent motion for reconsideration,[28][16] finding no reversible error in the challenged CSC Resolution.

 

The Petition

 

          In the petition before us, the petitioner argues that he was denied due process when the August 17, 2006 pre-hearing conference was conducted in his absence without prior notice of the August 11, 2006 order denying the motion for reconsideration of the order of change of venue, since Atty. Molina received by registered mail a copy of the August 11, 2006 order only on August 18, 2006, or a day after the August 17, 2006 pre-hearing conference. The petitioner pleads good faith in approving the loans based on an existing GSIS Board Resolution which authorizes branch managers to approve loans for meritorious and special reasons; the loans were cleared by the Commission on Audit and settled by the borrowers. He contends that the penalty of dismissal is too severe in the absence of any wrongful intent and given his 40 years of government service.

 

The Case for Respondent GSIS

 

          The GSIS submits that the petitioner was not denied due process because Atty. Molina received onAugust 14, 2006a fax copy of theAugust 11, 2006order. On the merits of the case, the GSIS maintains that the evidence on record duly established the petitioner’s administrative culpability for acts inimical to the interest of the public, warranting his dismissal from the service; the penalty of dismissal was warranted since this was the petitioner’s second administrative offense.

 

The Issues

 

The issues are: (1) whether the petitioner was denied due process, and (2) whether there was substantial evidence to support petitioner’s dismissal from the service.

 

The Court’s Ruling

 

 

  We PARTIALLY GRANT the petition and modify the findings of the CA pertaining to the petitioner’s administrative liability.

 

The Procedural Due Process Issue

 

Procedural due process is the constitutional standard demanding that notice and an opportunity to be heard be given before judgment is rendered. As long as a party is given the opportunity to defend his interests in due course, he would have no reason to complain; the essence of due process is in the opportunity to be heard.[29][17] A formal or trial-type hearing is not always necessary.

 

          In this case, while the petitioner did not participate in the August 17, 2006 pre-hearing conference (despite receipt on August 14, 2006 of a fax copy of the August 11, 2006 order), Garcia’s decision of February 21, 2007 duly considered and discussed the defenses raised in Atty. Molina’s pleadings, although the answer was ordered expunged from the records because it was unverified and because Atty. Molina failed to submit a letter of authority to represent the petitioner.

 

What negates any due process infirmity is the petitioner’s subsequent motion for reconsideration which cured whatever defect the Hearing Officer might have committed in the course of hearing the petitioner’s case.[30][18] Again, Garcia duly considered the arguments presented in the petitioner’s motion for reconsideration when he rendered the June 6, 2007 resolution.[31][19]  Thus, the petitioner was actually heard through his pleadings.

 

Findings of facts of administrative bodies accorded finality when supported by substantial evidence

 

Misconduct has a legal and uniform definition. Misconduct has been defined as an intentional wrongdoing or a deliberate violation of a rule of law or standard of behavior, especially by a government official.[32][20] A misconduct is grave where the elements of corruption, clear intent to violate the law or flagrant disregard of established rule are present.[33][21] Otherwise, a misconduct is only simple.

 

No doubt exists in our mind that the petitioner committed misconduct in this case.  The records clearly show that the petitioner committed the acts complained of, i.e., he approved the requests for salary loans of eight GSIS Naga Field Office employees who lacked the necessary contribution requirements under PPG No. 153-99.  After a careful review of the records, however, we disagree with the findings of the GSIS, the CSC and the CA that the petitioner’s acts constituted grave misconduct. While we accord great respect to the factual findings of administrative agencies that misconduct was committed, we cannot characterize the offense committed as grave. No substantial evidence was adduced to support the elements of “corruption,” “clear intent to violate the law” or “flagrant disregard of established rule” that must be present to characterize the misconduct as grave.

 

 We are aware that to the CSC, the mere act of approving the loan applications on several occasions proves the element of flagrant disregard of established rules to constitute grave misconduct.  Thus, it said:

 

            The act of the appellant in approving salary loan applications of his subordinates over and above the prescribed rates under the GSIS policy, not only once but several times, indicates his flagrant and wanton transgression of the said policy. He, in fact, abused his authority in doing so.[34][22]

 

Flagrant disregard of rules is a ground that jurisprudence has already touched upon. It has been demonstrated, among others, in the instances when there had been open defiance of a customary rule;[35][23] in the repeated voluntary disregard of established rules in the procurement of supplies;[36][24] in the practice of illegally collecting fees more than what is prescribed for delayed registration of marriages;[37][25] when several violations or disregard of regulations governing the collection of government funds were committed;[38][26] and when the employee arrogated unto herself responsibilities that were clearly beyond her given duties.[39][27] The common denominator in these cases was the employee’s propensity to ignore the rules as clearly manifested by his or her actions.

Under the circumstances of the present case, we do not see the type of open defiance and disregard of GSIS rules that the CSC observed.  In fact, the CSC’s findings on the petitioner’s actions prior to the approval of the loans negate the presence of any intent on the petitioner’s part to deliberately defy the policy of the GSIS. First, GSIS branch managers have been granted in the past the authority to approve loan applications beyond the prescribed requirements of GSIS; second, there was a customary lenient practice in the approval of loans exercised by some branch managers notwithstanding the existing GSIS policy; and third, the petitioner first sought the approval of his immediate supervisor before acting on the loan applications. These circumstances run counter to the characteristic flagrant disregard of the rules that grave misconduct requires. 

 

 Thus, the petitioner’s liability under the given facts only involves simple misconduct. As Branch Manager of the GSIS Naga Field Office, he is presumed to know all existing policies, guidelines and procedures in carrying out the agency’s mandate in the area.  By  approving the loan applications of eight GSIS Naga Field Office employees who did not fully meet the required qualifications, he committed a serious lapse of judgment sufficient to hold him liable for simple misconduct.

 

The Revised Uniform Rules of the Civil Service (Civil Service Rules) classifies simple misconduct as a less grave offense.  Under Section 52(B) (2), Rule IV of the Civil Service Rules, the commission of simple misconduct is penalized by suspension for one (1) month and one (1) day to six (6) months for the first offense, and dismissal from the service for the second offense. While records show that this is not the petitioner’s first offense as he was previously suspended for one (1) year for neglect of duty, we believe that his dismissal would be disproportionate to the nature and effect of the transgression he committed as the GSIS did not suffer any prejudice through the loans he extended; these loans were for GSIS employees and were duly paid for. Thus, for his second simple misconduct, we impose on the petitioner the penalty of suspension from the lapse of his preventive suspension by GSIS up to the finality of this Decision.[40][28]

 

WHEREFORE, premises considered, we PARTIALLY GRANT the petition for review on certiorari and MODIFY the assailed decision and resolution of the Court of Appeals. Petitioner Monico K. Imperial, Jr. is found GUILTY of SIMPLE MISCONDUCT and is hereby SUSPENDED from the time the preventive suspension that GSIS imposed lapsed, up to the finality of this Decision. 

 

          SO ORDERED.

 

                                                ARTURO D. BRION

                                                Associate Justice

         

 

WE CONCUR:

 

 

 

 

 

RENATO C. CORONA

Chief Justice

 

 

 

 

 

ANTONIO T. CARPIO

Associate Justice

 

 

 

 

 

PRESBITERO J. VELASCO, JR.

Associate Justice

 

 

 

 

  TERESITA J. LEONARDO-DE CASTRO

Associate Justice

 

 

 

 

DIOSDADO M. PERALTA

Associate Justice

 

 

 

 

LUCAS P. BERSAMIN

Associate Justice

 

 

 

 

MARIANO C. DEL CASTILLO

Associate Justice

 

 

 

 

ROBERTO A. ABAD

Associate Justice

 

 

 

MARTIN S. VILLARAMA, JR.

Associate Justice

 

 

 

 

JOSE PORTUGAL PEREZ

Associate Justice

 

 

 

 

JOSE CATRAL MENDOZA

Associate Justice

 

 

 

 

                                                  (On Leave)

MARIA LOURDES P. A. SERENO                        BIENVENIDO L. REYES

         Associate Justice                                               Associate Justice

 

 

 

 

ESTELA M. PERLAS-BERNABE

Associate Justice

 

 

C E R T I F I C A T I O N

 

          Pursuant to Section 13, Article VIII of the Constitution, I certify that the conclusions in the above Decision had been reached in consultation before the case was assigned to the writer of the opinion of the Court.

 

 

                                                RENATO C. CORONA

                                                Chief Justice

 


 


[1][17] Catmon Sales International Corporation v. Yngson, Jr., G.R. No. 179761, January 15, 2010, 610 SCRA 236, 244; and Cuenca v. Atas, G.R. No. 146214, October 5, 2007, 535 SCRA 48, 72.

[2][18] Autencio v. City Administrator Mañara, 489 Phil. 752, 760-761 (2005); Cordenillo v. Hon. Exec. Secretary, 342 Phil. 618, 643 (1997); and Rubenecia v. CSC, 314 Phil. 612, 631 (1995).

[3][19] Supra note 13.

[4][21]    Id. at 233-234.

[5][20]    Vertudes v. Buenaflor, G.R. No. 153166,December 16, 2005, 478 SCRA 210, 233.

[6][21]    Id. at 233-234.

[7][23]    Narvasa v. Sanchez, Jr., G.R. No. 169449,March 26, 2010, 616 SCRA 586, 592.             

[8][24]    Roque v. Court of Appeals, G.R. No. 179245,July 23, 2008, 559 SCRA 660, 674.            

[9][25]    Bulalat v. Adil, A.M. No. SCC-05-10-P,October 19, 2007, 537 SCRA 44, 49.

[10][26]    Valera v. Office of the Ombudsman, G.R. No. 167278,February 27, 2008, 547 SCRA 42, 64.

[11][27]   Re: Letter of Judge Lorenza Bordios Paculdo, MTC, Branch 1, San Pedro, Laguna, A.M. No. P-07-2346,February 18, 2008, 546 SCRA 13, 21.

[12][28]         Fact-Finding and Intelligence Bureau, Office of the Ombudsman v. Campaña, G.R. No. 173865,August 20, 2008, 562 SCRA 680, 694.

[13][1]          Filed pursuant to Rule 45 of the Rules of Court; rollo, pp. 3-35.

[14][2] Penned by Associate Justice Mario L. Guariña III, and concurred in by Associate Justices Mariflor P. Punzalan Castillo and Jane Aurora C. Lantion; id. at 39-50.

[15][3] Id. at 52.

[16][4] Pursuant to the Amended Rules of Procedure in the Administrative Investigation of GSIS Employees and Officials in relation to the Uniform Rules of Procedure on Administrative Cases in the Civil Service.

[17][5] DatedJuly 1, 1999.

[18][6] Rollo, pp. 53-55.

[19][7] Id. at 56-57.

[20][8] Id. at 58-59.

[21][9] Id. at 91-92.

[22][10]         Id. at 93-94.

[23][11]         Decision dated February 21, 2007; id. at 95-105.

[24][12]         Id. at 106-107.

[25][13]         Id. at 108-115.

[26][14]         Resolution dated October 8, 2007; id. at 117-125.

[27][15]         Supra note 2.

[28][16]         Supra note 3.

[29][17]         Catmon Sales International Corporation v. Yngson, Jr., G.R. No. 179761, January 15, 2010, 610 SCRA 236, 244; and Cuenca v. Atas, G.R. No. 146214, October 5, 2007, 535 SCRA 48, 72.

[30][18]         Autencio v. City Administrator Mañara, 489 Phil. 752, 760-761 (2005); Cordenillo v. Hon. Exec. Secretary, 342 Phil. 618, 643 (1997); and Rubenecia v. CSC, 314 Phil. 612, 631 (1995).

[31][19]         Supra note 13.

[32][20]    Vertudes v. Buenaflor, G.R. No. 153166,December 16, 2005, 478 SCRA 210, 233.

[33][21]    Id. at 233-234.

[34][22]    Rollo, p. 125.

[35][23]    Narvasa v. Sanchez, Jr., G.R. No. 169449,March 26, 2010, 616 SCRA 586, 592.           

[36][24]    Roque v. Court of Appeals, G.R. No. 179245,July 23, 2008, 559 SCRA 660, 674.          

[37][25]    Bulalat v. Adil, A.M. No. SCC-05-10-P,October 19, 2007, 537 SCRA 44, 49.

[38][26]    Valera v. Office of the Ombudsman, G.R. No. 167278,February 27, 2008, 547 SCRA 42, 64.

[39][27]   Re: Letter of Judge Lorenza Bordios Paculdo, MTC, Branch 1, San Pedro, Laguna, A.M. No. P-07-2346,February 18, 2008, 546 SCRA 13, 21.

[40][28]         Fact-Finding and Intelligence Bureau, Office of the Ombudsman v. Campaña, G.R. No. 173865,August 20, 2008, 562 SCRA 680, 694.