Latest Entries »

CASE 2012-0065: UNITED MERCHANTS  CORPORATION VS. COUNTRY BANKERS INSURANCE CORPORATION (G.R. No. 198588. 11 JULY 2012, CARPIO, J.) SUBJECT/S: WHEN SC WILL REVIEW QUESTIONS OF FACTS; BURDEN OF PROOF; ARSON AND FRAUD IN INSURAMCE CLAIM.  (BRIEF TITLE: UNITED MERCHANTS VS. CITY BANKERS).

 

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

 

 

DISPOSITIVE:

 

WHEREFORE, we DENY the petition. We AFFIRM the 16 June 2011 Decision and the 8 September 2011 Resolution of the Court of Appeals in  CA-G.R. CV No. 85777.

 

        SO ORDERED.

 

       

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

 

 

SUBJECTS/DOCTRINES/DIGESTS

 

 

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

 

 

WHEN SHALL SC REVIEW QUESTIONS OF FACTS?

 

 

WHEN THE FINDINGS OF THE CA ARE IN CONFLICT WITH THOSE OF THE TRIAL COURT.

 

 

        At the outset, CBIC assails this petition as defective since what UMC ultimately wants this Court to review are questions of fact. However, UMC argues that where the findings of the CA are in conflict with those of the trial court, a review of the facts may be made. On this procedural issue, we find UMC’s claim meritorious.

 

        A petition for review under Rule 45 of the Rules of Court specifically provides that only questions of law may be raised. The findings of fact of the CA are final and conclusive and this Court will not review them on appeal,[1][17] subject to exceptions as when the findings of the appellate court conflict with the findings of the trial court.[2][18]  Clearly, the present case falls under the exception. Since UMC properly raised the conflicting findings of the lower courts, it is proper for this Court to resolve such contradiction.

 

          Having settled the procedural issue, we proceed to the primordial issue which boils down to whether UMC is entitled to claim from CBIC the full coverage of its fire insurance policy.

 

XXXXXXXXXXXXXXXXXXXX

 

 

WHAT IS BURDEN OF PROOF?

 

 

IT IS  THE DUTY OF ANY PARTY TO PRESENT EVIDENCE TO ESTABLISH HIS CLAIM OR DEFENSE BY THE AMOUNT OF EVIDENCE REQUIRED BY LAW.

 

 

XXXXXXXXXXXXXXXX

 

 

WHO HAS THE BURDEN OF PROOF?

 

 

ONE WHO ASSERTS THE AFFIRMATIVE OF THE ISSUE.

 

 

XXXXXXXXXXXXX

 

 

IN A CASE INVOLVING AN INSURANCE CLAIM WHAT WILL THE INSURED PROVE?

 

 

ONLY A PRIMA FACIE CASE IN ITS FAVOR.

 

 

ONCE INSURED ESTABLISHES A PRIMA FACIE CASE THE BURDEN OF PROOF SHIFTS TO THE INSURER TO CONTROVERT SUCH PRIMA FACIE CASE.

 

 

XXXXXXXXXXXXXXXXXX

 

 

UMC  ESTABLISHED A PRIMA FACIE CASE. CBIC ALLEGED AN EXCEPTED RISK WHICH IS THE PRESENCE OF ARSON AND FRAUD.  WAS THERE ARSON?

 

 

NO. CBIC’S EVIDENCE DID NOT PROVE THAT THE FIRE WAS INTENTIONALLY CAUSED BY THE INSURED.  

 

 

XXXXXXXXXXXXXXX

 

 

WHAT ARE THE ELEMENTS OF ARSON?

 

 

THE ELEMENTS ARE:

 

 

(1)               THE CORPUS DELICTI, THAT IS, A FIRE CAUSED BY A CRIMINAL ACT;

 

 

(2)               AND  THE IDENTITY OF THE DEFENDANTS AS THE ONE RESPONSIBLE FOR THE CRIME.[3][25]

XXXXXXXXXXXX

 

 

WHAT IS THE CORPUS DELICTI IN ARSON?

 

 

CORPUS DELICTI MEANS THE SUBSTANCE OF THE CRIME, THE FACT THAT A CRIME HAS ACTUALLY BEEN COMMITTED.[4][26] THIS IS SATISFIED BY PROOF OF THE BARE OCCURRENCE OF THE FIRE AND OF ITS HAVING BEEN INTENTIONALLY CAUSED.[5][27]

 

 

XXXXXXXXXXXXXXXXXXXXXX

 

 

          UMC contends that because it had already established a prima facie case against CBIC which failed to prove its defense, UMC is entitled to claim the full coverage under the Insurance Policy. On the other hand, CBIC contends that because arson and fraud attended the claim, UMC is not entitled to recover under Condition No. 15 of the Insurance Policy.

 

          Burden of proof is the duty of any party to present evidence to establish his claim or defense by the amount of evidence required by law,[6][19]  which is preponderance of evidence in civil cases.[7][20]  The party, whether plaintiff or defendant, who asserts the affirmative of the issue has the burden of proof to obtain a favorable judgment.[8][21]  Particularly, in insurance cases, once an insured makes out a prima facie case in its favor, the burden of evidence shifts to the insurer to controvert the insured’s prima facie case.[9][22]  In the present case, UMC established a prima facie case against CBIC. CBIC does not dispute that UMC’s stocks in trade were insured against fire under the Insurance Policy and that the warehouse, where UMC’s stocks in trade were stored, was gutted by fire on 3 July 1996, within the duration of the fire insurance. However, since CBIC alleged an excepted risk, then the burden of evidence shifted to CBIC to prove such exception.

 

          An insurer who seeks to defeat a claim because of an exception or limitation in the policy has the burden of establishing that the loss comes within the purview of the exception or limitation.[10][23] If loss is proved apparently within a contract of insurance, the burden is upon the insurer to establish that the loss arose from a cause of loss which is excepted or for which it is not liable, or from a cause which limits its liability.[11][24] In the present case, CBIC failed to discharge its primordial burden of establishing that the damage or loss was caused by arson, a limitation in the policy.

 

          In prosecutions for arson, proof of the crime charged is complete where the evidence establishes: (1) the corpus delicti, that is, a fire caused by a criminal act; and (2) the identity of the defendants as the one responsible for the crime.[12][25] Corpus delicti means the substance of the crime, the fact that a crime has actually been committed.[13][26] This is satisfied by proof of the bare occurrence of the fire and of its having been intentionally caused.[14][27]

 

        In the present case, CBIC’s evidence did not prove that the fire was intentionally caused by the insured. First, the findings of CBIC’s witnesses, Cabrera and Lazaro, were based on an investigation conducted more than four months after the fire. The testimonies of Cabrera and Lazaro, as to the boxes doused with kerosene as told to them by barangay officials, are hearsay because the barangay officials were not presented in court. Cabrera and Lazaro even admitted that they did not conduct a forensic investigation of the warehouse nor did they file a case for arson.[15][28] Second, the Sworn Statement of Formal Claim submitted by UMC, through CRM, states that the cause of the fire was “faulty electrical wiring/accidental in nature.” CBIC is bound by this evidence because in its Answer, it admitted that it designated CRM to evaluate UMC’s loss. Third, the Certification by the Bureau of Fire Protection states that the fire was accidental in origin. This Certification enjoys the presumption of regularity, which CBIC failed to rebut.

 

XXXXXXXXXXXXXXXXXXX

 

 

WAS THERE FRAUD?

 

 

YES. UMC PADDED ITS CLAIM. IT PRESENTED FALSE INVOICES.

 

 

XXXXXXXXXXXXXX

 

 

WHAT IS THE JURISPRUDENTIAL RULE ON FRAUD IN INSURANCE?

 

 

IN YU BAN CHUAN V. FIELDMENS INSURANCE, CO., INC.,[16][36] THE COURT RULED THAT THE SUBMISSION OF FALSE INVOICES TO THE ADJUSTERS ESTABLISHES A CLEAR CASE OF FRAUD AND MISREPRESENTATION WHICH VOIDS THE INSURERS LIABILITY AS PER CONDITION OF THE POLICY. THEIR FALSITY IS THE BEST EVIDENCE OF THE FRAUDULENT CHARACTER OF PLAINTIFFS CLAIM.[17][37] IN VERENDIA V. COURT OF APPEALS,[18][38] WHERE THE INSURED PRESENTED A FRAUDULENT LEASE CONTRACT TO SUPPORT HIS CLAIM FOR INSURANCE  BENEFITS, THE COURT HELD THAT BY ITS FALSE DECLARATION, THE INSURED FORFEITED ALL BENEFITS UNDER THE POLICY PROVISION SIMILAR TO CONDITION NO. 15 OF THE INSURANCE POLICY IN THIS CASE.

 

 

 

          Contrary to UMC’s allegation, CBIC’s failure to prove arson does not mean that it also failed to prove fraud. Qua Chee Gan v. Law Union[19][29] does not apply in the present case. In Qua Chee Gan,[20][30] the Court dismissed the allegation of fraud based on the dismissal of the arson case against the insured, because the evidence was identical in both cases, thus:

 

While the acquittal of the insured in the arson case is not res judicata on the present civil action, the insurer’s evidence, to judge from the decision in the criminal case, is practically identical in both cases and must lead to the same result, since the proof to establish the defense of connivance at the fire in order to defraud the insurer “cannot be materially less convincing than that required in order to convict the insured of the crime of arson” (Bachrach vs. British American Assurance Co., 17 Phil. 536). [21][31]

 

          In the present case, arson and fraud are two separate grounds based on two different sets of evidence, either of which can void the insurance claim of UMC. The absence of one does not necessarily result in the absence of the other. Thus, on the allegation of fraud, we affirm the findings of the Court of Appeals.

 

        Condition No. 15 of the Insurance Policy provides that all the benefits under the policy shall be forfeited, if the claim be in any respect fraudulent, or if any false declaration be made or used in support thereof, to wit:

 

15. If the claim be in any respect fraudulent, or if any false declaration be made or used in support thereof, or if any fraudulent means or devices are used by the Insured or anyone acting in his behalf to obtain any benefit under this Policy; or if the loss or damage be occasioned by the willful act, or with the connivance of the Insured, all the benefits under this Policy shall be forfeited.

 

        InUy Hu & Co. v. The Prudential Assurance Co., Ltd.,[22][32]  the Court held that where a fire insurance policy provides that “if the claim be in any respect fraudulent, or if any false declaration be made or used in support thereof, or if any fraudulent means or devices are used by the Insured or anyone acting on his behalf to obtain any benefit under this Policy,” and the evidence is conclusive that the proof of claim which the insured submitted was false and fraudulent both as to the kind, quality and amount of the goods and their value destroyed by the fire, such a proof of claim is a bar against the insured from recovering on the policy even for the amount of his actual loss.

 

In the present case, as proof of its loss of stocks in trade amounting to P50,000,000.00, UMC submitted its Sworn Statement of Formal Claim together with the following documents: (1) letters of credit and invoices for raw materials, Christmas lights and cartons purchased; (2) charges for assembling the Christmas lights; and (3) delivery receipts of the raw materials. However, the charges for assembling the Christmas lights and delivery receipts could not support its insurance claim. The Insurance Policy provides that CBIC agreed to insure UMC’s stocks in trade. UMC defined stock in trade as tangible personal property kept for sale or traffic.[23][33]Applying UMC’s definition, only the letters of credit and invoices for raw materials, Christmas lights and cartons may be considered.

 

The invoices, however, cannot be taken as genuine. The invoices reveal that the stocks in trade purchased for 1996 amounts to P20,000,000.00 which were purchased in one month. Thus, UMC needs to prove purchases amounting to P30,000,000.00 worth of stocks in trade for 1995 and prior years. However, in the Statement of Inventory it submitted to the BIR, which is considered an entry in official records,[24][34] UMC stated that it had no stocks in trade as of 31 December 1995. In its defense, UMC alleged that it did not include as stocks in trade the raw materials to be assembled as Christmas lights, which it had on 31 December 1995. However, as proof of its loss, UMC submitted invoices for raw materials, knowing that the insurance covers only stocks in trade. 

        Equally important, the invoices (Exhibits “P”-“DD”) from Fuze Industries Manufacturer Phils. were suspicious. The purchases, based on the invoices and without any supporting contract, amounted to P19,550,400.00 worth of Christmas lights from 20 January 1996 to 23 February 1996. The uncontroverted testimony of Cabrera revealed that there was no Fuze Industries Manufacturer Phils. located at “55 Mahinhin St., Teacher’s Village, Quezon City,” the business address appearing in the invoices and the records of the Department of Trade & Industry. Cabrera testified that:

 

A: Then we went personally to the address as I stated a while ago appearing in the record furnished by the United Merchants Corporation to the adjuster, and the adjuster in turn now, gave us our basis in conducting investigation, so we went to this place which according to the records, the address of this company but there was no office of this company.

 

Q: You mentioned Atty. Cabrera that you went to Diliman, Quezon City and discover the address indicated by the United Merchants as the place of business of Fuze Industries Manufacturer, Phils. was a residential place, what then did you do after determining that it was a residential place?

 

A: We went to the owner of the alleged company as appearing in the Department of Trade & Industry record, and as appearing a certain Chinese name Mr. Huang, and the address as appearing there is somewhere in Binondo. We went personally there together with the NBI Agent and I am with them when the subpoena was served to them, but a male person approached us and according to him, there was no Fuze Industries Manufacturer, Phils., company in that building sir.[25][35]

 

          In Yu Ban Chuan v. Fieldmens Insurance, Co., Inc.,[26][36] the Court ruled that the submission of false invoices to the adjusters establishes a clear case of fraud and misrepresentation which voids the insurer’s liability as per condition of the policy. Their falsity is the best evidence of the fraudulent character of plaintiff’s claim.[27][37] In Verendia v. Court of Appeals,[28][38] where the insured presented a fraudulent lease contract to support his claim for insurance  benefits, the Court held that by its false declaration, the insured forfeited all benefits under the policy provision similar to Condition No. 15 of the Insurance Policy in this case.

 

        Furthermore, UMC’s Income Statement indicated that the purchases or costs of sales are P827,670.00 for 1995 and P1,109,190.00 for 1996 or a total of P1,936,860.00.[29][39] To corroborate this fact, Ebora testified that:

 

Q: Based on your 1995 purchases, how much were the purchases made in   1995?

A: The purchases made by United Merchants Corporation for the last year 1995 is P827,670.[00] sir

Q: And how about in 1994?

A: In 1994, it’s P608,986.00 sir.

 

Q: These purchases were made for the entire year of 1995 and 1994 respectively, am I correct?

A: Yes sir, for the year 1994 and 1995.[30][40] (Emphasis supplied)

 

In its 1996 Financial Report, which UMC admitted as existing, authentic and duly executed during the 4 December 2002 hearing, it had P1,050,862.71 as total assets and P167,058.47 as total liabilities.[31][41]

 

        Thus, either amount in UMC’s Income Statement or Financial Reports is twenty-five times the claim UMC seeks to enforce. The RTC itself recognized that UMC padded its claim when it only allowed P43,930,230.00 as insurance claim. UMC supported its claim of P50,000,000.00 with the Certification from the Bureau of Fire Protection stating that “x x x a fire broke out at United Merchants Corporation located at 19-B Dag[o]t Street, Brgy. Manresa, Quezon City incurring an estimated damage of Fifty- Five Million Pesos (P55,000,000.00) to the building and contentsx x x.” However, this Certification only proved that the estimated damage of P55,000,000.00 is shared by both the building and the stocks in trade.

          It has long been settled that a false and material statement made with an intent to deceive or defraud voids an insurance policy.[32][42]  In Yu Cua v. South British Insurance Co.,[33][43] the claim was fourteen times bigger than the real loss; in Go Lu v. Yorkshire Insurance Co,[34][44] eight times; and in Tuason v. North China Insurance Co.,[35][45] six times. In the present case, the claim is twenty five times the actual claim proved.

 

        The most liberal human judgment cannot attribute such difference to mere innocent error in estimating or counting but to a deliberate intent to demand from insurance companies payment for indemnity of goods not existing at the time of the fire.[36][46] This constitutes the so-called “fraudulent claim” which, by express agreement between the insurers and the insured, is a ground for the exemption of insurers from civil liability.[37][47]

 

        In its Reply, UMC admitted the discrepancies when it stated that “discrepancies in its statements were not  covered by the warranty such that any discrepancy in the declaration in other instruments or documents as to matters that may have some relation to the insurance coverage voids the policy.”[38][48]

 

        On UMC’s allegation that it did not breach any warranty, it may be argued that the discrepancies do not, by themselves, amount to a breach of warranty. However, the Insurance Code provides that “a policy may declare that a violation of specified provisions thereof shall avoid it.”[39][49] Thus, in fire insurance policies, which contain provisions such as Condition No. 15 of the Insurance Policy, a fraudulent discrepancy between the actual loss and that claimed in the proof of loss voids the insurance policy. Mere filing of such a claim will exonerate the insurer.[40][50]

        Considering that all the circumstances point to the inevitable conclusion that UMC padded its claim and was guilty of fraud, UMC violated Condition No. 15 of the Insurance Policy. Thus, UMC forfeited whatever benefits it may be entitled under the Insurance Policy, including its insurance claim.

 

XXXXXXXXXXXXXXXXXX

 

 

BUT THE CARDINAL PRINCIPLE OF INSURANCE LAW IS THAT A CONTRACT OF INSURANCE IS TO BE CONSTRUED LIBERABLLY IN FAVOR OF THE INSURED. CAN THIS PRINCIPLE NOT BE APPLIED IN THIS CASE?

 

 

NO. THE CONTRACT IN THIS CASE IS CLEAR. CONTRACTS OF INSURANCE, LIKE OTHER CONTRACTS, ARE TO BE CONSTRUED ACCORDING TO THE SENSE AND MEANING OF THE TERMS WHICH THE PARTIES THEMSELVES HAVE USED.[41][52] IF SUCH TERMS ARE CLEAR AND UNAMBIGUOUS, THEY MUST BE TAKEN AND UNDERSTOOD IN THEIR PLAIN, ORDINARY AND POPULAR SENSE.

 

 

        While it is a cardinal principle of insurance law that a contract of insurance is to be construed liberally in favor of the insured and strictly against the insurer company,[42][51] contracts of insurance, like other contracts, are to be construed according to the sense and meaning of the terms which the parties themselves have used.[43][52] If such terms are clear and unambiguous, they must be taken and understood in their plain, ordinary and popular sense. Courts are not permitted to make contracts for the parties; the function and duty of the courts is simply to enforce and carry out the contracts actually made.[44][53]

 

 

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

 

 

 

 

SECOND DIVISION

 

 

UNITED MERCHANTS

 CORPORATION,

                                     Petitioner,

 

 

 

                  –  versus  –

 

 

 

 

COUNTRY BANKERS INSURANCE CORPORATION,

                                   Respondent.

         G.R. No. 198588

 

       Present:

 

       CARPIO, J., Chairperson,

       BRION,    

       PEREZ,

       SERENO, and

       REYES, JJ.

 

 

       Promulgated:  

       July 11, 2012

x- – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – – x

 

D E C I S I O N

 

CARPIO, J.:

 

The Case

 

        This Petition for Review on Certiorari[45][1] seeks to reverse the Court of Appeals’ Decision[46][2] dated 16 June 2011 and its Resolution[47][3] dated 8 September 2011 in CA-G.R. CV No. 85777. The Court of Appeals reversed the Decision[48][4] of the Regional Trial Court (RTC) of Manila, Branch 3, and ruled that the claim on the Insurance Policy is void.

The Facts

 

        The facts, as culled from the records, are as follows: 

 

        Petitioner United Merchants Corporation (UMC) is engaged in the business of buying, selling, and manufacturing Christmas lights. UMC leased a warehouse at 19-B Dagot Street, San Jose Subdivision, Barrio Manresa, Quezon City, where UMC assembled and stored its products. 

 

        On 6 September 1995, UMC’s General Manager Alfredo Tan  insured UMC’s stocks in trade of Christmas lights against fire with defendant Country Bankers Insurance Corporation (CBIC) for P15,000,000.00.  The Fire Insurance Policy No. F-HO/95-576 (Insurance Policy) and Fire Invoice No. 12959A, valid until 6 September 1996, states:

 

AMOUNT OF INSURANCE:                    FIFTEEN

                                                        MILLION PESOS

                                                        PHILIPPINE

                                                        CURRENCY

 

x x x

 

PROPERTY INSURED: On stocks in trade only, consisting of Christmas Lights, the properties of the Assured or held by them in trust, on commissions, or on joint account with others and/or for which they are responsible in the event of loss and/or damage during the currency of this policy, whilst contained in the building of one lofty storey in height, constructed of concrete and/or hollow blocks with portion of galvanized iron sheets, under galvanized iron rood, occupied as Christmas lights storage.[49][5]

        On 7 May 1996, UMC and CBIC executed Endorsement F/96-154 and Fire Invoice No. 16583A to form part of the Insurance Policy. Endorsement F/96-154 provides that UMC’s stocks in trade were insured against additional perils, to wit: “typhoon, flood, ext. cover, and full earthquake.” The sum insured was also increased to P50,000,000.00 effective 7 May 1996 to 10 January 1997. On 9 May 1996, CBIC issued Endorsement F/96-157 where the name of the assured was changed from Alfredo Tan to UMC.

 

          On 3 July 1996, a fire gutted the warehouse rented by UMC. CBIC designated CRM Adjustment Corporation (CRM) to investigate and evaluate UMC’s loss by reason of the fire. CBIC’s reinsurer, Central Surety, likewise requested the National Bureau of Investigation (NBI) to conduct a parallel investigation. On 6 July 1996, UMC, through CRM, submitted to CBIC its Sworn Statement of Formal Claim, with proofs of its loss.

 

        On 20 November 1996, UMC demanded for at least fifty percent (50%) payment of its claim from CBIC. On 25 February 1997, UMC received CBIC’s letter, dated 10 January 1997, rejecting UMC’s claim due to breach of Condition No. 15 of the Insurance Policy. Condition No. 15 states:

 

If the claim be in any respect fraudulent, or if any false declaration be made or used in support thereof, or if any fraudulent means or devices are used by the Insured or anyone acting in his behalf to obtain any benefit under this Policy; or if the loss or damage be occasioned by the willful act, or with the connivance of the Insured, all the benefits under this Policy shall be forfeited.[50][6]

 

        On 19 February 1998, UMC filed a Complaint[51][7] against CBIC with the RTC of Manila. UMC anchored its insurance claim on the Insurance Policy, the Sworn Statement of Formal Claim earlier submitted, and the Certification dated 24 July 1996 made by Deputy Fire Chief/Senior Superintendent Bonifacio J. Garcia of the Bureau of Fire Protection. The Certification dated 24 July 1996 provides that:

 

This is to certify that according to available records of this office, on or about 6:10 P.M. of July 3, 1996, a fire broke out at United Merchants Corporation located at 19-B Dag[o]t Street, Brgy. Manresa, Quezon City incurring an estimated damage of Fifty-Five Million Pesos (P55,000,000.00) to the building and contents, while the reported insurance coverage amounted to Fifty Million Pesos (P50,000,000.00) with Country Bankers Insurance Corporation.

          The Bureau further certifies that no evidence was gathered to prove that the establishment was willfully, feloniously and intentionally set on fire.

 

         That the investigation of the fire incident is already closed being ACCIDENTAL in nature.[52][8]

 

        In its Answer with Compulsory Counterclaim[53][9] dated 4 March 1998,  CBIC admitted the issuance of the Insurance Policy to UMC but raised the following defenses: (1) that the Complaint states no cause of action; (2)  that UMC’s claim has already prescribed; and (3) that UMC’s fire claim is tainted with fraud.  CBIC alleged that UMC’s claim was fraudulent because UMC’s Statement of Inventory showed that it had no stocks in trade as of  31 December 1995, and that UMC’s suspicious purchases for the year 1996 did not even amount to P25,000,000.00. UMC’s GIS and Financial Reports further revealed that it had insufficient capital, which meant UMC could not afford the alleged P50,000,000.00 worth of stocks in trade.

 

        In its Reply[54][10] dated 20 March 1998, UMC denied violation of Condition No. 15 of the Insurance Policy. UMC claimed that it did not make any false declaration because the invoices were genuine and the Statement of Inventory was for internal revenue purposes only, not for its insurance claim.

        During trial, UMC presented five witnesses. The first witness was Josie Ebora (Ebora), UMC’s disbursing officer. Ebora testified that UMC’s stocks in trade, at the time of the fire, consisted of: (1) raw materials for its Christmas lights; (2)  Christmas lights already assembled; and (3) Christmas lights purchased from local suppliers. These stocks in trade were delivered from August 1995 to May 1996. She stated that Straight Cargo Commercial Forwarders delivered the imported materials to the warehouse, evidenced by delivery receipts. However, for the year 1996, UMC had no importations and only bought from its local suppliers. Ebora identified the suppliers as Fiber Technology Corporation from which UMC bought stocks worth P1,800,000.00 on 20 May 1996; Fuze Industries Manufacturer Philippines from which UMC bought stocks worth P19,500,000.00 from 20 January 1996 to 23 February 1996; and Tomco Commercial Press from which UMC bought several Christmas boxes. Ebora testified that all these deliveries were not yet paid. Ebora also presented UMC’s Balance Sheet, Income Statement and Statement of Cash Flow. Per her testimony, UMC’s purchases amounted to P608,986.00 in 1994; P827,670.00 in 1995; and P20,000,000.00 in 1996. Ebora also claimed that UMC had sales only from its fruits business but no sales from its Christmas lights for the year 1995.

 

        The next witness, Annie Pabustan (Pabustan), testified that her company provided about 25 workers to assemble and pack Christmas lights for UMC from 28 March 1996 to 3 July 1996. The third witness, Metropolitan Bank and Trust Company (MBTC) Officer Cesar Martinez, stated that UMC opened letters of credit with MBTC for the year 1995 only. The fourth witness presented was Ernesto Luna (Luna), the delivery checker of Straight Commercial Cargo Forwarders. Luna affirmed the delivery of UMC’s goods to its warehouse on 13 August 1995, 6 September 1995,         8 September 1995, 24 October 1995, 27 October 1995, 9 November 1995, and 19 December 1995. Lastly, CRM’s adjuster Dominador Victorio testified that he inspected UMC’s warehouse and prepared preliminary reports in this connection.

 

        On the other hand, CBIC presented the claims manager Edgar Caguindagan (Caguindagan), a Securities and Exchange Commission (SEC) representative, Atty. Ernesto Cabrera (Cabrera), and NBI Investigator Arnold Lazaro (Lazaro). Caguindagan testified that he inspected the burned warehouse on 5 July 1996, took pictures of it and referred the claim to an independent adjuster. The SEC representative’s testimony was dispensed with, since the parties stipulated on the existence of certain documents, to wit: (1) UMC’s GIS for 1994-1997; (2) UMC’s Financial Report as of       31 December 1996; (3) SEC Certificate that UMC did not file GIS or Financial Reports for certain years; and (4) UMC’s Statement of Inventory as of 31 December 1995 filed with the BIR.

 

        Cabrera and Lazaro testified that they were hired by Central Surety to investigate UMC’s claim. On 19 November 1996, they concluded that arson was committed based from their interview with barangay officials and the pictures showing that blackened surfaces were present at different parts of the warehouse. On cross-examination, Lazaro admitted that they did not conduct a forensic investigation of the warehouse, nor did they file a case for arson. 

 

        For rebuttal, UMC presented Rosalinda Batallones (Batallones), keeper of the  documents of UCPB General Insurance, the insurer of Perfect Investment Company, Inc., the warehouse owner.  When asked to bring documents related to the insurance of Perfect Investment Company, Inc., Batallones brought the papers of Perpetual Investment, Inc.

 

The Ruling of the Regional Trial Court

 

        On 16 June 2005, the RTC of Manila, Branch 3, rendered a Decision in favor of UMC, the dispositive portion of which reads:

 

                   WHEREFORE, judgment is hereby rendered in favor of plaintiff and ordering defendant to pay plaintiff:

 

         a) the sum of P43,930,230.00 as indemnity with interest thereon at 6% per annum  from November 2003 until fully paid; 

         b) the sum of P100,000.00 for exemplary damages;

         c) the sum of P100,000.00 for attorney’s fees; and

         d) the costs of suit.

 

                   Defendant’s counterclaim is denied for lack of merit.

 

                   SO ORDERED.[55][11]

 

 

        The RTC found no dispute as to UMC’s fire insurance contract with CBIC. Thus, the RTC ruled for UMC’s entitlement to the insurance proceeds, as follows:

 

         Fraud is never presumed but must be proved by clear and convincing evidence. (see Alonso v. Cebu Country Club, 417 SCRA 115 [2003]) Defendant failed to establish by clear and convincing evidence that the documents submitted to the SEC and BIR were true. It is common business practice for corporations to have 2 sets of reports/statements for tax purposes. The stipulated documents of plaintiff (Exhs. 2 – 8) may not have been accurate.

 

         The conflicting findings of defendant’s adjuster, CRM Adjustment [with stress] and that made by Atty. Cabrera & Mr. Lazaro for Central Surety shall be resolved in favor of the former. Definitely the former’s finding is more credible as it was made soon after the fire while that of the latter was done 4 months later. Certainly it would be a different situation as the site was no longer the same after the clearing up operation which is normal after a fire incident. The Christmas lights and parts could have been swept away. Hence the finding of the latter appears to be speculative to benefit the reinsurer and which defendant wants to adopt to avoid liability.

 

          The CRM Adjustment report found no arson and confirmed substantial stocks in the burned warehouse (Exhs. QQQ) [underscoring supplied]. This is bolstered by the BFP certification that there was no proof of arson and the fire was accidental (Exhs. PPP). The certification by a government agency like BFP is presumed to be a regular performance of official duty. “Absent convincing evidence to the contrary, the presumption of regularity in the performance of official functions has to be upheld.” (People vs. Lapira, 255 SCRA 85) The report of UCPB General Insurance’s adjuster also found no arson so that the burned warehouse owner PIC was indemnified.[56][12]

 

 

        Hence, CBIC filed an appeal with the Court of Appeals (CA).

 

The Ruling of the Court of Appeals

 

        On 16 June 2011, the CA promulgated its Decision in favor of CBIC. The dispositive portion of the Decision reads:

          WHEREFORE, in view of the foregoing premises, the instant appeal is GRANTED and the  Decision of the Regional Trial Court, of the National Judicial Capital Region, Branch 3 of the City of Manila dated June 16, 2005 in Civil Case No. 98-87370 is REVERSED  and SET ASIDE. The plaintiff-appellee’s claim upon its insurance policy is deemed avoided.

 

                   SO ORDERED.[57][13]

        The CA ruled that UMC’s claim under the Insurance Policy is void. The CA found that the fire was intentional in origin, considering the array of evidence submitted by CBIC, particularly the pictures taken and the reports of Cabrera and Lazaro, as opposed to UMC’s failure to explain the details of the alleged fire accident. In addition, it found that UMC’s claim was overvalued through fraudulent transactions. The CA ruled:

 

         We have meticulously gone over the entirety of the evidence submitted by the parties and have come up with a conclusion that the claim of the plaintiff-appellee was indeed overvalued by transactions which were fraudulently concocted so that the full coverage of the insurance policy will have to be fully awarded to the plaintiff-appellee.

 

          First, We turn to the backdrop of the plaintiff-appellee’s case, thus, [o]n September 6, 1995 its stocks-in-trade were insured for Fifteen Million Pesos and on May 7, 1996 the same was increased to 50 Million Pesos. Two months thereafter, a fire gutted the plaintiff-appellee’s warehouse.

 

          Second, We consider the reported purchases of the plaintiff-appellee as shown in its financial report dated December 31, 1996 vis-à-vis the testimony of Ms. Ebora thus:

 

     1994- P608,986.00

     1995- P827,670.00

1996- P20,000,000.00 (more or less) which were purchased for a period of one month.

 

          Third, We shall also direct our attention to the alleged true and complete purchases of the plaintiff-appellee as well as the value of all stock-in-trade it had at the time that the fire occurred. Thus:

Exhibit

Source

Amount (pesos)

Dates Covered

Exhs. “P”-“DD”,

inclusive

Fuze Industries

Manufacturer Phils.

19,550,400.00 January 20, 1996

January 31, 1996

February 12, 1996

February 20, 1996

February 23, 1996

Exhs.  “EE”-“HH”,  

inclusive

Tomco Commercial Press 1,712,000.00 December 19, 1995

January 24, 1996

February 21, 1996

November 24, 1995

Exhs. “II”-“QQ”,

inclusive

Precious Belen

Trading

2,720,400.00 January 13, 1996

January 19, 1996

January 26, 1996

February 3, 1996

February 13, 1996

February 20, 1996

February 27, 1996

Exhs. “RR”-

“EEE”, inclusive

Wisdom Manpower Services 361,966.00 April 3, 1996

April 12, 1996

April 19, 1996

April 26, 1996

May 3, 1996

May 10, 1996

May 17, 1996

May 24, 1996

June 7, 1996

June 14, 1996

June 21, 1996

June 28, 1996

July 5, 1996

Exhs. “GGG”-

“NNN”, inclusive

Costs of Letters of

Credit for

imported raw

materials

15,159,144.71 May 29, 1995

June 15, 1995

July 5, 1995

September 4, 1995

October 2, 1995

October 27, 1995

January 8, 1996

March 19, 1996

Exhs. “GGG-11”

 –  “GGG-24”,

“HHH-12”, “HHH-22”, “III-11”, “III-14”,

 “JJJ-13”, “KKK-11”, “LLL-5”

SCCFI statements of account 384,794.38 June 15, 1995

June 28, 1995

August 1, 1995

September 4, 1995

September 8, 1995

September 11, 1995

October 30, 199[5]

November 10, 1995

December 21, 1995

  TOTAL 44,315,024.31  

 

         Fourth, We turn to the allegation of fraud by the defendant-appellant by thoroughly looking through the pieces of evidence that it adduced during the trial. The latter alleged that fraud is present in the case at bar as shown by the discrepancy of the alleged purchases from that of the reported purchases made by plaintiff-appellee. It had also averred that fraud is present when upon verification of the address of Fuze Industries, its office is nowhere to be found. Also, the defendant-appellant expressed grave doubts as to the purchases of the plaintiff-appellee sometime in 1996 when such purchases escalated to a high 19.5 Million Pesos without any contract to back it up.[58][14]

 

On 7 July 2011, UMC filed a Motion for Reconsideration,[59][15] which the CA denied in its Resolution dated 8 September 2011. Hence, this petition.

 

The Issues

 

        UMC seeks a reversal and raises the following issues for resolution:

 

I.

WHETHER THE COURT OF APPEALS MADE A RULING INCO[N]SISTENT WITH LAW, APPLICABLE JURISPRUDENCE AND EVIDENCE AS TO THE EXISTENCE OF ARSON AND FRAUD IN THE ABSENCE OF “MATERIALLY CONVINCING EVIDENCE.”

II.

WHETHER THE COURT OF APPEALS MADE A RULING INCONSISTENT WITH LAW, APPLICABLE JURISPRUDENCE AND EVIDENCE WHEN IT FOUND THAT PETITIONER BREACHED ITS WARRANTY.[60][16]

 

The Ruling of the Court

 

        At the outset, CBIC assails this petition as defective since what UMC ultimately wants this Court to review are questions of fact. However, UMC argues that where the findings of the CA are in conflict with those of the trial court, a review of the facts may be made. On this procedural issue, we find UMC’s claim meritorious.

 

        A petition for review under Rule 45 of the Rules of Court specifically provides that only questions of law may be raised. The findings of fact of the CA are final and conclusive and this Court will not review them on appeal,[61][17] subject to exceptions as when the findings of the appellate court conflict with the findings of the trial court.[62][18]  Clearly, the present case falls under the exception. Since UMC properly raised the conflicting findings of the lower courts, it is proper for this Court to resolve such contradiction.

 

          Having settled the procedural issue, we proceed to the primordial issue which boils down to whether UMC is entitled to claim from CBIC the full coverage of its fire insurance policy.

 

          UMC contends that because it had already established a prima facie case against CBIC which failed to prove its defense, UMC is entitled to claim the full coverage under the Insurance Policy. On the other hand, CBIC contends that because arson and fraud attended the claim, UMC is not entitled to recover under Condition No. 15 of the Insurance Policy.

          Burden of proof is the duty of any party to present evidence to establish his claim or defense by the amount of evidence required by law,[63][19]  which is preponderance of evidence in civil cases.[64][20]  The party, whether plaintiff or defendant, who asserts the affirmative of the issue has the burden of proof to obtain a favorable judgment.[65][21]  Particularly, in insurance cases, once an insured makes out a prima facie case in its favor, the burden of evidence shifts to the insurer to controvert the insured’s prima facie case.[66][22]  In the present case, UMC established a prima facie case against CBIC. CBIC does not dispute that UMC’s stocks in trade were insured against fire under the Insurance Policy and that the warehouse, where UMC’s stocks in trade were stored, was gutted by fire on 3 July 1996, within the duration of the fire insurance. However, since CBIC alleged an excepted risk, then the burden of evidence shifted to CBIC to prove such exception.

 

          An insurer who seeks to defeat a claim because of an exception or limitation in the policy has the burden of establishing that the loss comes within the purview of the exception or limitation.[67][23] If loss is proved apparently within a contract of insurance, the burden is upon the insurer to establish that the loss arose from a cause of loss which is excepted or for which it is not liable, or from a cause which limits its liability.[68][24] In the present case, CBIC failed to discharge its primordial burden of establishing that the damage or loss was caused by arson, a limitation in the policy.

 

          In prosecutions for arson, proof of the crime charged is complete where the evidence establishes: (1) the corpus delicti, that is, a fire caused by a criminal act; and (2) the identity of the defendants as the one responsible for the crime.[69][25] Corpus delicti means the substance of the crime, the fact that a crime has actually been committed.[70][26] This is satisfied by proof of the bare occurrence of the fire and of its having been intentionally caused.[71][27]

 

        In the present case, CBIC’s evidence did not prove that the fire was intentionally caused by the insured. First, the findings of CBIC’s witnesses, Cabrera and Lazaro, were based on an investigation conducted more than four months after the fire. The testimonies of Cabrera and Lazaro, as to the boxes doused with kerosene as told to them by barangay officials, are hearsay because the barangay officials were not presented in court. Cabrera and Lazaro even admitted that they did not conduct a forensic investigation of the warehouse nor did they file a case for arson.[72][28] Second, the Sworn Statement of Formal Claim submitted by UMC, through CRM, states that the cause of the fire was “faulty electrical wiring/accidental in nature.” CBIC is bound by this evidence because in its Answer, it admitted that it designated CRM to evaluate UMC’s loss. Third, the Certification by the Bureau of Fire Protection states that the fire was accidental in origin. This Certification enjoys the presumption of regularity, which CBIC failed to rebut.

 

          Contrary to UMC’s allegation, CBIC’s failure to prove arson does not mean that it also failed to prove fraud. Qua Chee Gan v. Law Union[73][29] does not apply in the present case. In Qua Chee Gan,[74][30] the Court dismissed the allegation of fraud based on the dismissal of the arson case against the insured, because the evidence was identical in both cases, thus:

 

While the acquittal of the insured in the arson case is not res judicata on the present civil action, the insurer’s evidence, to judge from the decision in the criminal case, is practically identical in both cases and must lead to the same result, since the proof to establish the defense of connivance at the fire in order to defraud the insurer “cannot be materially less convincing than that required in order to convict the insured of the crime of arson” (Bachrach vs. British American Assurance Co., 17 Phil. 536). [75][31]

 

          In the present case, arson and fraud are two separate grounds based on two different sets of evidence, either of which can void the insurance claim of UMC. The absence of one does not necessarily result in the absence of the

 

other. Thus, on the allegation of fraud, we affirm the findings of the Court of Appeals.

 

        Condition No. 15 of the Insurance Policy provides that all the benefits under the policy shall be forfeited, if the claim be in any respect fraudulent, or if any false declaration be made or used in support thereof, to wit:

 

15. If the claim be in any respect fraudulent, or if any false declaration be made or used in support thereof, or if any fraudulent means or devices are used by the Insured or anyone acting in his behalf to obtain any benefit under this Policy; or if the loss or damage be occasioned by the willful act, or with the connivance of the Insured, all the benefits under this Policy shall be forfeited.

 

        In Uy Hu & Co. v. The Prudential Assurance Co., Ltd.,[76][32]  the Court held that where a fire insurance policy provides that “if the claim be in any respect fraudulent, or if any false declaration be made or used in support thereof, or if any fraudulent means or devices are used by the Insured or anyone acting on his behalf to obtain any benefit under this Policy,” and the evidence is conclusive that the proof of claim which the insured submitted was false and fraudulent both as to the kind, quality and amount of the goods and their value destroyed by the fire, such a proof of claim is a bar against the insured from recovering on the policy even for the amount of his actual loss.

 

In the present case, as proof of its loss of stocks in trade amounting to P50,000,000.00, UMC submitted its Sworn Statement of Formal Claim together with the following documents: (1) letters of credit and invoices for raw materials, Christmas lights and cartons purchased; (2) charges for assembling the Christmas lights; and (3) delivery receipts of the raw materials. However, the charges for assembling the Christmas lights and delivery receipts could not support its insurance claim. The Insurance Policy provides that CBIC agreed to insure UMC’s stocks in trade. UMC defined stock in trade as tangible personal property kept for sale or traffic.[77][33]Applying UMC’s definition, only the letters of credit and invoices for raw materials, Christmas lights and cartons may be considered.

 

The invoices, however, cannot be taken as genuine. The invoices reveal that the stocks in trade purchased for 1996 amounts to P20,000,000.00 which were purchased in one month. Thus, UMC needs to prove purchases amounting to P30,000,000.00 worth of stocks in trade for 1995 and prior years. However, in the Statement of Inventory it submitted to the BIR, which is considered an entry in official records,[78][34] UMC stated that it had no stocks in trade as of 31 December 1995. In its defense, UMC alleged that it did not include as stocks in trade the raw materials to be assembled as Christmas lights, which it had on 31 December 1995. However, as proof of its loss, UMC submitted invoices for raw materials, knowing that the insurance covers only stocks in trade. 

        Equally important, the invoices (Exhibits “P”-“DD”) from Fuze Industries Manufacturer Phils. were suspicious. The purchases, based on the invoices and without any supporting contract, amounted to P19,550,400.00 worth of Christmas lights from 20 January 1996 to 23 February 1996. The uncontroverted testimony of Cabrera revealed that there was no Fuze Industries Manufacturer Phils. located at “55 Mahinhin St., Teacher’s Village, Quezon City,” the business address appearing in the invoices and the records of the Department of Trade & Industry. Cabrera testified that:

 

A: Then we went personally to the address as I stated a while ago appearing in the record furnished by the United Merchants Corporation to the adjuster, and the adjuster in turn now, gave us our basis in conducting investigation, so we went to this place which according to the records, the address of this company but there was no office of this company.

 

Q: You mentioned Atty. Cabrera that you went to Diliman, Quezon City and discover the address indicated by the United Merchants as the place of business of Fuze Industries Manufacturer, Phils. was a residential place, what then did you do after determining that it was a residential place?

 

A: We went to the owner of the alleged company as appearing in the Department of Trade & Industry record, and as appearing a certain Chinese name Mr. Huang, and the address as appearing there is somewhere in Binondo. We went personally there together with the NBI Agent and I am with them when the subpoena was served to them, but a male person approached us and according to him, there was no Fuze Industries Manufacturer, Phils., company in that building sir.[79][35]

 

          In Yu Ban Chuan v. Fieldmens Insurance, Co., Inc.,[80][36] the Court ruled that the submission of false invoices to the adjusters establishes a clear case of fraud and misrepresentation which voids the insurer’s liability as per condition of the policy. Their falsity is the best evidence of the fraudulent character of plaintiff’s claim.[81][37] In Verendia v. Court of Appeals,[82][38] where the insured presented a fraudulent lease contract to support his claim for insurance  benefits, the Court held that by its false declaration, the insured forfeited all benefits under the policy provision similar to Condition No. 15 of the Insurance Policy in this case.

 

        Furthermore, UMC’s Income Statement indicated that the purchases or costs of sales are P827,670.00 for 1995 and P1,109,190.00 for 1996 or a total of P1,936,860.00.[83][39] To corroborate this fact, Ebora testified that:

 

Q: Based on your 1995 purchases, how much were the purchases made in   1995?

A: The purchases made by United Merchants Corporation for the last year 1995 is P827,670.[00] sir

Q: And how about in 1994?

A: In 1994, it’s P608,986.00 sir.

 

Q: These purchases were made for the entire year of 1995 and 1994 respectively, am I correct?

A: Yes sir, for the year 1994 and 1995.[84][40] (Emphasis supplied)

 

In its 1996 Financial Report, which UMC admitted as existing, authentic and duly executed during the 4 December 2002 hearing, it had P1,050,862.71 as total assets and P167,058.47 as total liabilities.[85][41]

 

        Thus, either amount in UMC’s Income Statement or Financial Reports is twenty-five times the claim UMC seeks to enforce. The RTC itself recognized that UMC padded its claim when it only allowed P43,930,230.00 as insurance claim. UMC supported its claim of P50,000,000.00 with the Certification from the Bureau of Fire Protection stating that “x x x a fire broke out at United Merchants Corporation located at 19-B Dag[o]t Street, Brgy. Manresa, Quezon City incurring an estimated damage of Fifty- Five Million Pesos (P55,000,000.00) to the building and contentsx x x.” However, this Certification only proved that the estimated damage of P55,000,000.00 is shared by both the building and the stocks in trade.

          It has long been settled that a false and material statement made with an intent to deceive or defraud voids an insurance policy.[86][42]  In Yu Cua v. South British Insurance Co.,[87][43] the claim was fourteen times bigger than the real loss; in Go Lu v. Yorkshire Insurance Co,[88][44] eight times; and in Tuason v. North China Insurance Co.,[89][45] six times. In the present case, the claim is twenty five times the actual claim proved.

 

        The most liberal human judgment cannot attribute such difference to mere innocent error in estimating or counting but to a deliberate intent to demand from insurance companies payment for indemnity of goods not existing at the time of the fire.[90][46] This constitutes the so-called “fraudulent claim” which, by express agreement between the insurers and the insured, is a ground for the exemption of insurers from civil liability.[91][47]

 

        In its Reply, UMC admitted the discrepancies when it stated that “discrepancies in its statements were not  covered by the warranty such that any discrepancy in the declaration in other instruments or documents as to matters that may have some relation to the insurance coverage voids the policy.”[92][48]

 

        On UMC’s allegation that it did not breach any warranty, it may be argued that the discrepancies do not, by themselves, amount to a breach of warranty. However, the Insurance Code provides that “a policy may declare that a violation of specified provisions thereof shall avoid it.”[93][49] Thus, in fire insurance policies, which contain provisions such as Condition No. 15 of the Insurance Policy, a fraudulent discrepancy between the actual loss and that claimed in the proof of loss voids the insurance policy. Mere filing of such a claim will exonerate the insurer.[94][50]

        Considering that all the circumstances point to the inevitable conclusion that UMC padded its claim and was guilty of fraud, UMC violated Condition No. 15 of the Insurance Policy. Thus, UMC forfeited whatever benefits it may be entitled under the Insurance Policy, including its insurance claim.

 

        While it is a cardinal principle of insurance law that a contract of insurance is to be construed liberally in favor of the insured and strictly against the insurer company,[95][51] contracts of insurance, like other contracts, are to be construed according to the sense and meaning of the terms which the parties themselves have used.[96][52] If such terms are clear and unambiguous, they must be taken and understood in their plain, ordinary and popular sense. Courts are not permitted to make contracts for the parties; the function and duty of the courts is simply to enforce and carry out the contracts actually made.[97][53]

 

        WHEREFORE, we DENY the petition. We AFFIRM the 16 June 2011 Decision and the 8 September 2011 Resolution of the Court of Appeals in  CA-G.R. CV No. 85777.

 

        SO ORDERED.

       

                                                               

 

                                                    ANTONIO T. CARPIO

                                                  Senior Associate Justice

 

WE CONCUR:

 

    

 

                                  ARTURO D. BRION                                        

                                      Associate Justice                                                      

 

 

 

 

 

 JOSE PORTUGAL PEREZ           MARIA LOURDES P. A. SERENO       

         Associate Justice                                  Associate Justice

       

 

 

                                   BIENVENIDO L. REYES     

                                          Associate Justice                          

   

  

CERTIFICATION

         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’s Division.

 

 

 

                                                       ANTONIO T. CARPIO

                                   Senior Associate Justice

                                                                       (Per Section 12, R.A. 296,

                                                           The Judiciary Act of 1948, as amended)

 

 

 

 


 


[1][17]          Microsoft Corp. v. Maxicorp. Inc., 481 Phil. 550 (2004) citing  Amigo v. Teves, 96 Phil. 252   (1954).

[2][18]          Id. citing Ramos, et al. v. Pepsi-Cola Bottling Co. of the Phils., et al., 125 Phil. 701 (1967).

[3][25]          Gonzales, Jr. v. People, G.R. No. 159950, 12 February 2007, 515 SCRA 480.

[4][26]          People v. De Leon, G.R. No. 180762, 4 March 2009, 580 SCRA 617.

[5][27]          People v. Oliva, 395 Phil. 265 (2000).

[6][19]          Rules of Court, Rule 131, Sec.1.

[7][20]          Rules of Court, Rule 133, Sec.1.

[8][21]          DBP Pool of Accredited Insurance Companies v. Radio Mindanao Network, Inc., 516 Phil. 110        (2006).

[9][22]          Id. citing Jison v. Court of Appeals, 350 Phil. 138 (1998).

[10][23]         Id.

[11][24]         Id.;Country Bankers Insurance Corp. v. Lianga Bay and Community Multi-Purpose Cooperative,                Inc., 425 Phil. 511 (2002).

[12][25]         Gonzales, Jr. v. People, G.R. No. 159950, 12 February 2007, 515 SCRA 480.

[13][26]         People v. De Leon, G.R. No. 180762, 4 March 2009, 580 SCRA 617.

[14][27]         People v. Oliva, 395 Phil. 265 (2000).

[15][28]         Rollo, p. 171.

[16][36]         121 Phil. 1275 (1965).

[17][37]         Id.

[18][38]         G.R. No. 75605, 22 January 1993, 217 SCRA 417.

[19][29]         98 Phil. 85 (1955).

[20][30]         Id.

[21][31]         Id. at 98-99.

[22][32]         51 Phil. 231 (1927).

[23][33]         Rollo, p. 60.

[24][34]         Governed by Rule 130 of the Rules of Court. Section 44, Rule 130 of the Rules of Court states:

      Sec. 44. Entries in official records. — Entries in official records made in the performance of his duty by a public officer of the Philippines, or by a person in the performance of a duty specially enjoined by law, are prima facie evidence of the facts therein stated.

[25][35]         Rollo, p. 189.

[26][36]         121 Phil. 1275 (1965).

[27][37]         Id.

[28][38]         G.R. No. 75605, 22 January 1993, 217 SCRA 417.

[29][39]         Rollo, p. 186.

[30][40]         Id.

[31][41]         Id. at  191.

[32][42]         Tan It v. Sun Insurance Office, 51 Phil. 212 (1927), citing Yu Cua v. South British Insurance Co.,      41 Phil. 134 (1920); Go Lu v. Yorkshire Insurance Co., 43 Phil. 633 (1922); Tuason v. North   China Insurance Co., 47 Phil. 14 (1924).

[33][43]         41 Phil. 134 (1920).

[34][44]         43 Phil. 633 (1922).

[35][45]         47 Phil. 14 (1924).

[36][46]         Sharruf & Co. v. Baloise Fire Insurance, Co.,64 Phil. 258 (1937).

[37][47]         Id.

[38][48]         Rollo, p. 385.

[39][49]         The Insurance Code, Sec. 75.

[40][50]         Yu Cua v. South British Insurance Co., supra note 43.

[41][52]         Id.

[42][51]         Pacific Banking Corporation v. Court of Appeals, 250 Phil. 1 (1988).

[43][52]         Id.

[44][53]         Id.

[45][1]          Under Rule 45 of the 1997 Rules of Civil Procedure.

[46][2]          Rollo, pp. 37-62. Penned by Associate Justice Edwin D. Sorongon with Associate Justices                Rosalinda Asuncion-Vicente and Romeo F. Barza, concurring.

[47][3]          Id. at 65-66.

[48][4]          Id. at 207-210. Penned by Judge  Antonio I. De Castro.

[49][5]          Id. at 14.

[50][6]          Id. at 83.

[51][7]          Id. at 74-80.

[52][8]          Id. at 92.

[53][9]          Id. at 123-128.

[54][10]         Id. at 130-132.

[55][11]         Id. at 210.

[56][12]         Id. at 209.

[57][13]         Id. at 61-62.

[58][14]         Id. at 54-56.

[59][15]         Id. at 344-355.

[60][16]         Id. at 16-17.

[61][17]         Microsoft Corp. v. Maxicorp. Inc., 481 Phil. 550 (2004) citing  Amigo v. Teves, 96 Phil. 252   (1954).

[62][18]         Id. citing Ramos, et al. v. Pepsi-Cola Bottling Co. of the Phils., et al., 125 Phil. 701 (1967).

[63][19]         Rules of Court, Rule 131, Sec.1.

[64][20]         Rules of Court, Rule 133, Sec.1.

[65][21]         DBP Pool of Accredited Insurance Companies v. Radio Mindanao Network, Inc., 516 Phil. 110        (2006).

[66][22]         Id. citing Jison v. Court of Appeals, 350 Phil. 138 (1998).

[67][23]         Id.

[68][24]         Id.;Country Bankers Insurance Corp. v. Lianga Bay and Community Multi-Purpose Cooperative,                Inc., 425 Phil. 511 (2002).

[69][25]         Gonzales, Jr. v. People, G.R. No. 159950, 12 February 2007, 515 SCRA 480.

[70][26]         People v. De Leon, G.R. No. 180762, 4 March 2009, 580 SCRA 617.

[71][27]         People v. Oliva, 395 Phil. 265 (2000).

[72][28]         Rollo, p. 171.

[73][29]         98 Phil. 85 (1955).

[74][30]         Id.

[75][31]         Id. at 98-99.

[76][32]         51 Phil. 231 (1927).

[77][33]         Rollo, p. 60.

[78][34]         Governed by Rule 130 of the Rules of Court. Section 44, Rule 130 of the Rules of Court states:

      Sec. 44. Entries in official records. — Entries in official records made in the performance of his duty by a public officer of the Philippines, or by a person in the performance of a duty specially enjoined by law, are prima facie evidence of the facts therein stated.

[79][35]         Rollo, p. 189.

[80][36]         121 Phil. 1275 (1965).

[81][37]         Id.

[82][38]         G.R. No. 75605, 22 January 1993, 217 SCRA 417.

[83][39]         Rollo, p. 186.

[84][40]         Id.

[85][41]         Id. at  191.

[86][42]         Tan It v. Sun Insurance Office, 51 Phil. 212 (1927), citing Yu Cua v. South British Insurance Co.,      41 Phil. 134 (1920); Go Lu v. Yorkshire Insurance Co., 43 Phil. 633 (1922); Tuason v. North   China Insurance Co., 47 Phil. 14 (1924).

[87][43]         41 Phil. 134 (1920).

[88][44]         43 Phil. 633 (1922).

[89][45]         47 Phil. 14 (1924).

[90][46]         Sharruf & Co. v. Baloise Fire Insurance, Co.,64 Phil. 258 (1937).

[91][47]         Id.

[92][48]         Rollo, p. 385.

[93][49]         The Insurance Code, Sec. 75.

[94][50]         Yu Cua v. South British Insurance Co., supra note 43.

[95][51]         Pacific Banking Corporation v. Court of Appeals, 250 Phil. 1 (1988).

[96][52]         Id.

[97][53]         Id.

CASE 2012-0064: FERNANDO Q. MIGUEL VS. THE HONORABLE SANDIGANBAYAN (G.R. No. 172035, 04 JULY 2012, BRION, J.) SUBJECT/S: PREVENTIVE SUSPENSION IN A BRIBERY CASE; REQUIREMENTS OF INFORMATION FILED AGAINST ACCUSED (BRIEF TITLE: MIGUEL VS. SANDIGANBAYAN)

 

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

 

DISPOSITIVE:

 

WHEREFORE, we hereby DISMISS the petition for lack of merit.

 

SO ORDERED.

 

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

 

 

SUBJECTS/DOCTRINES/DIGEST:

 

 

WHAT ARE THE REQUIREMENTS OF AN INFORMATION?

 

 

THERE ARE TWO:

 

 

  1. 1.               IT SHALL STATE THE DESIGNATION OF THE OFFENSE GIVEN BY THE STATUTE AND THE ACTS OR OMISSIONS IMPUTED WHICH CONSTITUTE THE OFFENSE CHARGED.

 

 

  1. 2.                  THESE ACTS OR OMISSIONS AND ITS ATTENDANT CIRCUMSTANCES “MUST BE STATED IN ORDINARY AND CONCISE LANGUAGE” AND “IN TERMS SUFFICIENT TO ENABLE A PERSON OF COMMON UNDERSTANDING TO KNOW WHAT OFFENSE IS BEING CHARGED X  X  X  AND FOR THE COURT TO PRONOUNCE JUDGMENT.”[1][33]

 

 

        In deference to the constitutional right of an accused to be informed of the nature and the cause of the accusation against him,[2][31] Section 6, Rule 110 of the Revised Rules of Criminal Procedure (Rules)[3][32] requires, inter alia, that the information shall state the designation of the offense given by the statute and the acts or omissions imputed which constitute the offense charged. Additionally, the Rules requires that these acts or omissions and its attendant circumstances “must be stated in ordinary and concise language” and “in terms sufficient to enable a person of common understanding to know what offense is being charged x  x  x  and for the court to pronounce judgment.”[4][33]

 

XXXXXXXXXXXXXXXXXXX

 

 

WHAT IS THE TEST TO FIND OUT WHETHER THE INFORMATION IS SUFFICIENT?

 

 

WHETHER THE CRIME IS:

 

 

        DESCRIBED IN INTELLIGIBLE TERMS;

 

        AND

 

        WITH SUCH PARTICULARITY WITH REASONABLE       CERTAINTY SO THAT THE ACCUSED IS DULY        INFORMED OF THE OFFENSE CHARGED.

 

 

XXXXXXXXXXXXXXXXX

 

 

WHAT IS THE REASON FOR THIS RULE?

 

 

TO ENABLE THE ACCUSED TO SUITABLY PREPARE HIS DEFENSE.[5][34]

 

 

 

The test of the information’s sufficiency is whether the crime is described in intelligible terms and with such particularity with reasonable certainty so that the accused is duly informed of the offense charged. In particular, whether an information validly charges an offense depends on whether the material facts alleged in the complaint or information shall establish the essential elements of the offense charged as defined in the law. The raison d’etre of the requirement in the Rules is to enable the accused to suitably prepare his defense.[6][34]

 

XXXXXXXXXXXXXXXXXXXXXXX

 

 

PETITIONER MOVED TO QUASH THE INFORMATION BECAUSE IT CONTAINED THE ALLEGEDLY VAGUE  PHRASE “ACTING WITH EVIDENT BAD FAITH AND MANIFEST PARTIALITY”. IS HE CORRECT?

 

 

NO. THE PHRASE WAS MERELY A CONTINUATION OF THE PRIOR ALLEGATION OF THE ACTS OF THE PETITIONER. IN PLAIN TERMS IT MEANS HE ULTIMATELY ACTED WITH EVIDENT BAD FAITH AND MANIFEST PARTIALITY IN GIVING UNWARRANTED BENEFITS AND ADVANTAGES TO HIS CO-ACCUSED PRIVATE INDIVIDUALS.

 

 

IF THE SUBJECT IS AMBIGUOUS, HIS REMEDY IS TO MOVE  FOR BILL OF PARTICULARS AND NOT TO FILE A MOTION TO QUASH.

 

 

In arguing against the validity of the information, the petitioner appears to go beyond the standard of a “person of common understanding” in appreciating the import of the phrase “acting with evident bad faith and manifest partiality.” A reading of the information clearly reveals that the phrase “acting with evident bad faith and manifest partiality” was merely a continuation of the prior allegation of the acts of the petitioner, and that he ultimately acted with evident bad faith and manifest partiality in giving unwarranted benefits and advantages to his co-accused private individuals. This is what a plain and non-legalistic reading of the information would yield.             

 

Notably, in his petition, the petitioner would have us believe that this elemental phrase was actually omitted in the information[7][35] when, in his reaction to the OSP’s comment, what the petitioner actually disputes is simply the clarity of the phrase’s position, in relation with the other averments in the information. Given the supposed ambiguity of the subject being qualified by the phrase “acting with evident bad faith and manifest partiality,” the remedy of the petitioner, if at all, is merely to move for a bill of particulars and not for the quashal of an information which sufficiently alleges the elements of the offense charged.[8][36] 

 

XXXXXXXXXXXXXXXXXXXX

 

 

PETITIONER WAS SUSPENDED AFTER THE FILING OF THE INFORMATION AGAINST HIM FOR BRIBERY UNDER R.A. NO. 3019. WHAT IS THE LEGAL BASIS FOR SUCH SUSPENSION?

 

 

SECTION 13 OF R.A. NO. 3019.

 

 

 

Section 13 of R.A. No. 3019 reads:

 

 

Section 13. Suspension and loss of benefits. Any public officer against whom any criminal prosecution under a valid information under this Act or under the provisions of the Revised Penal Code on bribery is pending in court, shall be suspended from office. Should he be convicted by final judgment, he shall lose all retirement or gratuity benefits under any law, but if he is acquitted, he shall be entitled to reinstatement and to the salaries and benefits which he failed to receive during suspension, unless in the meantime administrative proceedings have been filed against him.

 

XXXXXXXXXXXXXX

 

 

WHAT IS REQUIRED PRIOR TO SUCH SUSPENSION?

 

 

THE SUSPENSION REQUIRES A PRIOR HEARING TO DETERMINE “THE VALIDITY OF THE INFORMATION”[9][38] FILED AGAINST HIM, “TAKING INTO ACCOUNT THE SERIOUS AND FAR REACHING CONSEQUENCES OF A SUSPENSION OF AN ELECTIVE PUBLIC OFFICIAL EVEN BEFORE HIS CONVICTION.”[10][39]

 

 

XXXXXXXXXXXXXXXXX

 

 

WHAT RIGHT DOES THE ACCUSED HAVE DURING SUCH HEARING?

 

 

THE RIGHT TO CHALLENGE THE VALIDITY OF THE INFORMATION BEFORE A SUSPENSION ORDER MAY BE ISSUED.

 

 

SUCH RIGHT  INCLUDES THE RIGHT TO CHALLENGE THE

 

 

(I)               VALIDITY OF THE CRIMINAL PROCEEDING LEADING TO THE FILING OF AN INFORMATION AGAINST HIM, AND

 

 

(II)    PROPRIETY OF HIS PROSECUTION ON THE   GROUND THAT THE ACTS CHARGED DO NOT        CONSTITUTE A VIOLATION OF R.A. NO. 3019       OR OF THE PROVISIONS ON BRIBERY OF THE      REVISED PENAL CODE.[11][40]

 

While the suspension of a public officer under this provision is mandatory,[12][37] the suspension requires a prior hearing to determine “the validity of the information”[13][38] filed against him, “taking into account the serious and far reaching consequences of a suspension of an elective public official even before his conviction.”[14][39]  The accused public official’s right to challenge the validity of the information before a suspension order may be issued includes the right to challenge the (i) validity of the criminal proceeding leading to the filing of an information against him, and (ii) propriety of his prosecution on the ground that the acts charged do not constitute a violation of R.A. No. 3019 or of the provisions on bribery of the Revised Penal Code.[15][40]

 

 

XXXXXXXXXXXXXXXXXX

 

 

 

PETITIONER ARGUES THAT THERE WAS NO ACTUAL HEARING PRIOR TO SUSPENSION. WAS HE DEPRIVED OF SUCH RIGHT TO HEARING?

 

 

NO. THE ABSENCE OF AN ACTUAL HEARING ALONE CANNOT BE DETERMINATIVE OF THE VALIDITY OF A SUSPENSION ORDER.

 

 

IN THE PRESENT CASE, THE PETITIONER (I) FILED HIS VIGOROUS OPPOSITION (TO THE OSP’S MOTION TO SUSPEND ACCUSED PENDENTE LITE), AND AFTER RECEIVING AN ADVERSE RULING FROM THE SANDIGANBAYAN, (II) MOVED FOR RECONSIDERATION OF THE SUSPENSION ORDER ISSUED AGAINST HIM, AND (III) FILED A REPLY TO THE OSP’S OPPOSITION TO HIS PLEA FOR RECONSIDERATION.[16][49]  GIVEN THIS OPPORTUNITY, WE FIND THAT THE PETITIONER’S CONTINUED DEMAND FOR THE CONDUCT OF AN ACTUAL PRE-SUSPENSION HEARING – BASED ON THE SAME ALLEGED “DEFECT IN THE INFORMATION,”[17][50] WHICH WE HAVE FOUND WANTING – HAS LEGALLY NOTHING TO ANCHOR ITSELF ON.

 

 

In Bedruz v. Sandiganbayan,[18][45]the Court considered the opposition of the accused (to the prosecution’s motion to suspend pendente lite) as sufficient to dispense with the need to actually set the prosecution’s motion for hearing.

 

 

In Luciano v. Mariano[19][41] that the petitioner relied upon, the Court required, “by way of broad guidelines for the lower courts in the exercise of the power of suspension,” that –

 

(c) …upon the filing of such information, the trial court should issue an order with proper notice requiring the accused officer to show cause at a specific date of hearing why he should not be ordered suspended from office pursuant to the cited mandatory provisions of the Act. Where either the prosecution seasonably files a motion for an order of suspension or the accused in turn files a motion to quash the information or challenges the validity thereof, such show-cause order of the trial court would no longer be necessary. What is indispensable is that the trial court duly hear the parties at a hearing held for determining the validity of the information, and thereafter hand down its ruling, issuing the corresponding order of suspension should it uphold the validity of the information or withholding such suspension in the contrary case.

 

 

(d) No specific rules need be laid down for such pre-suspension hearing. Suffice it to state that the accused should be given a fair and adequate opportunity to challenge the validity of the criminal proceedings against him, e.g. that he has not been afforded the right of due preliminary investigation; that the acts for which he stands charged do not constitute a violation of the provisions of Republic Act No. 3019 or of the bribery provisions of the Revised Penal Code which would warrant his mandatory suspension from office under section 13 of the Act; or he may present a motion to quash the information on any of the grounds provided in Rule 117 of the Rules of Court. (Emphasis supplied)

 

The petitioner questions the absence of any show cause order issued by the Sandiganbayan before his suspension in office was ordered. As clear as the day, however, Luciano considered it unnecessary for the trial court to issue a show cause order when the motion, seeking the suspension of the accused pendente lite, has been submitted by the prosecution, as in the present case.

 

The purpose of the law in requiring a pre-suspension hearing is to determine the validity of the information so that the trial court can have a basis to either suspend the accused and proceed with the trial on the merits of the case, withhold the suspension and dismiss the case, or correct any part of the proceedings that impairs its validity.  That hearing is similar to a challenge to the validity of the information by way of a motion to quash.[20][42]

 

While a pre-suspension hearing is aimed at securing for the accused fair and adequate opportunity to challenge the validity of the information or the regularity of the proceedings against him,[21][43] Luciano likewise emphasizes that no hard and fast rule exists in regulating its conduct.[22][44]  With the purpose of a pre-suspension hearing in mind, the absence of an actual hearing alone cannot be determinative of the validity of a suspension order.

 

In Bedruz v. Sandiganbayan,[23][45]the Court considered the opposition of the accused (to the prosecution’s motion to suspend pendente lite) as sufficient to dispense with the need to actually set the prosecution’s motion for hearing. The same conclusion was reached in Juan v. People,[24][46] where the Court ruled:

 

In the case at bar, while there was no pre-suspension hearing held to determine the validity of the Informations that had been filed against petitioners, we believe that the numerous pleadings filed for and against them have achieved the goal of this procedure. The right to due process is satisfied nor just by an oral hearing but by the filing and the consideration by the court of the parties’ pleadings, memoranda and other position papers.

 

Since a pre-suspension hearing is basically a due process requirement, when an accused public official is given an adequate opportunity to be heard on his possible defenses against the mandatory suspension under R.A. No. 3019, then an accused would have no reason to complain that no actual hearing was conducted.[25][47] It is well settled that “to be heard” does not only mean oral arguments in court; one may be heard also through pleadings. Where opportunity to be heard, either through oral arguments or pleadings, has been accorded, no denial of procedural due process exists.[26][48]

 

In the present case, the petitioner (i) filed his Vigorous Opposition (to the OSP’s Motion to Suspend Accused Pendente Lite), and after receiving an adverse ruling from the Sandiganbayan, (ii) moved for reconsideration of the suspension order issued against him, and (iii) filed a Reply to the OSP’s Opposition to his plea for reconsideration.[27][49]  Given this opportunity, we find that the petitioner’s continued demand for the conduct of an actual pre-suspension hearing – based on the same alleged “defect in the information,”[28][50] which we have found wanting – has legally nothing to anchor itself on.

 

XXXXXXXXXXXXXX

 

 

PETITIONER ARGUES THAT THE PROVISION ON SUSPENSION MUST BE CONSTRUED LIBERALLY IN HIS FAVOR SINCE HE IS AN ACCUSED. IS HE CORRECT?

 

 

NO.

 

 

THE SUSPENSION REQUIRED UNDER THIS PROVISION IS NOT A PENALTY, AS IT IS NOT IMPOSED AS A RESULT OF JUDICIAL PROCEEDINGS; IN FACT, IF ACQUITTED, THE ACCUSED OFFICIAL SHALL BE ENTITLED TO REINSTATEMENT AND TO THE SALARIES AND BENEFITS WHICH HE FAILED TO RECEIVE DURING HIS SUSPENSION.[29][52]

 

 

RATHER, THE SUSPENSION UNDER SECTION 13 OF R.A. NO. 3019 IS A MERE PREVENTIVE MEASURE[30][53] THAT ARISES FROM THE LEGAL PRESUMPTION THAT UNLESS THE ACCUSED IS SUSPENDED, HE MAY FRUSTRATE HIS PROSECUTION OR COMMIT FURTHER ACTS OF MALFEASANCE OR DO BOTH, IN THE SAME WAY THAT UPON A FINDING THAT THERE IS PROBABLE CAUSE TO BELIEVE THAT A CRIME HAS BEEN COMMITTED AND THAT THE ACCUSED IS PROBABLY GUILTY THEREOF, THE LAW REQUIRES THE JUDGE TO ISSUE A WARRANT FOR THE ARREST OF THE ACCUSED.[31][54]

 

 

Another reason that militates against the petitioner’s position relates to the nature of Section 13 of R.A. No. 3019; it is not a penal provision that would call for a liberal interpretation in favor of the accused public official and a strict construction against the State.[32][51]  The suspension required under this provision is not a penalty, as it is not imposed as a result of judicial proceedings; in fact, if acquitted, the accused official shall be entitled to reinstatement and to the salaries and benefits which he failed to receive during his suspension.[33][52]

 

Rather, the suspension under Section 13 of R.A. No. 3019 is a mere preventive measure[34][53] that arises from the legal presumption that unless the accused is suspended, he may frustrate his prosecution or commit further acts of malfeasance or do both, in the same way that upon a finding that there is probable cause to believe that a crime has been committed and that the accused is probably guilty thereof, the law requires the judge to issue a warrant for the arrest of the accused.[35][54]

 

Suspension under R.A. No. 3019 being a mere preventive measure whose duration shall in no case exceed ninety (90) days,[36][55] the adequacy of the opportunity to contest the validity of the information and of the proceedings that preceded its filing vis-à-vis the merits of the defenses of the accused cannot be measured alone by the absence or presence of an actual hearing. An opportunity to be heard on one’s defenses, however unmeritorious it may be, against the suspension mandated by law equally and sufficiently serves both the due process right of the accused and the mandatory nature of the suspension required by law.

 

Lest it be forgotten, Section 13 of R.A. No. 3019 reinforces the principle enshrined in the Constitution that a public office is a public trust.[37][56] In light of the constitutional principle underlying the imposition of preventive suspension of a public officer charged under a valid information and the nature of this suspension, the petitioner’s demand for a trial-type hearing in the present case would only overwhelmingly frustrate, rather than promote, the orderly and speedy dispensation of justice.

 

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

 

Republic of the Philippines

Supreme Court

Manila

 

 

SECOND DIVISION

 

 

 

FERNANDO Q. MIGUEL,                 G.R. No. 172035

                                    Petitioner,           

Present:

 

                                                          CARPIO, J., Chairperson,

                                                          BRION,

                                                  PEREZ,

       – versus –                            SERENO, and

  REYES, JJ.

 

 

THE HONORABLE                                 Promulgated:                    

SANDIGANBAYAN,                                 

                            Respondent.        July 4, 2012

x—————————————————————————————–x

 

D E C I S I O N

 

BRION, J.:

Before the Court is a petition for certiorari under Rule 65[38][1] filed by Fernando Q. Miguel (petitioner), assailing the January 25, 2006 and March 27, 2006 resolutions[39][2] of the Sandiganbayan. These resolutions (i) ordered the petitioner’s suspension from public office and (ii) denied the petitioner’s motion for reconsideration of the suspension order. 

 

 

 

 

THE ANTECEDENT FACTS

 

On May 29, 1996, then Vice Mayor Mercelita M. Lucido and other local officials[40][3] of Koronadal City, South Cotabato filed a letter-complaint with the Office of the Ombudsman-Mindanao (Ombudsman)[41][4] charging the petitioner, among others,[42][5] with violation of Republic Act (R.A.) No. 3019, in connection with the consultancy services for the architectural aspect, the engineering design, and the construction supervision and management of the proposed Koronadal City public market (project).[43][6]

 

In a June 27, 1996 order, the Ombudsman directed the petitioner, among others, to submit his counter-affidavit. On October 23, 1996, after moving for an extension, the petitioner filed his counter-affidavit.[44][7]  In its July 29, 1999 resolution, the Ombudsman found probable cause against the petitioner and some private individuals for violation of R.A. No. 3019 and against the petitioner alone for Falsification of Public Document under Article 171, par. 4 of the Revised Penal Code.[45][8]

 

On March 1, 2000, the Ombudsman filed the corresponding informations with the Sandiganbayan.[46][9] The information for violation of Section 3(e) of R.A. No. 3019 reads:

 

That on 10 January 1995 or sometime prior or subsequent thereto, in the Municipality of Koronadal, South Cotabato, Philippines, and within the jurisdiction of this Honorable Court, the [petitioner], a high ranking public officer in his capacity as former Municipal Mayor of Koronadal, South Cotabato, and as such while in the performance of his official functions, committing the offense in relation to his office, taking advantage of his official position, conspiring and confederating with the private [individuals] xxx acting with evident bad faith and manifest partiality, did then and there willfully, unlawfully and criminally give unwarranted benefits and advantages to said [accused], by inviting them to participate in the prequalification of consultants to provide the Detailed Architectural & Engineering Design and Construction Supervision and Management of the proposed Koronadal Public Market, without causing the publication of said invitation in a newspaper of general circulation, thereby excluding other consultants from participating in said prequalification.[47][10] (Emphases and underscoring added)

 

 

On motions separately filed by two of the petitioner’s co-accused,[48][11] the Sandiganbayan ordered the Office of the Special Prosecutor (OSP) to conduct a reinvestigation. On August 21, 2000, the petitioner, through counsel, followed suit and orally moved for a reinvestigation, which the Sandiganbayan likewise granted. The Sandiganbayan gave the petitioner ten (10) days within which to file his counter-affidavit with the OSP.[49][12]

 

Instead of submitting his counter-affidavit, the petitioner asked[50][13] the Sandiganbayan for a thirty-day extension to submit his counter-affidavit. Shortly before the expiry of the extension requested, the petitioner asked[51][14] the OSP for an additional thirty-day period to file his counter-affidavit.  Despite the two extensions asked and granted, the petitioner asked the OSP anew for a twenty-day extension period.[52][15]

 

Despite the extension period asked and given, the petitioner failed to file his counter-affidavit, prompting Prosecutor Norberto B. Ruiz to declare that the petitioner had waived his right to submit countervailing evidence (April 25, 2001 resolution). On July 31, 2001, then Ombudsman Aniano Desierto approved the resolution.[53][16]

 

On August 7, 2001, Prosecutor Ruiz asked the Sandiganbayan for the arraignment and trial of the petitioner and of the other accused private individuals.[54][17]   

 

On August 6, 2002, after several extensions sought and granted, the petitioner filed a Motion to Quash and/or Reinvestigation for the criminal cases against him. On February 18, 2003, the Sandiganbayan denied the petitioner’s motion because of the pending OSP reinvestigation – this, despite the OSP’s earlier termination of the reinvestigation for the petitioner’s continuous failure to submit his counter-affidavit.[55][18] The petitioner did not question the denial of his motion.

 

        On November 3, 2004, the petitioner was arraigned; he pleaded not guilty in both criminal cases.[56][19]

 

        On April 28, 2005, the OSP filed a Motion to Suspend [the petitioner] Pendente Lite. On June 27, 2005, the petitioner filed his “Vigorous Opposition” based on the “obvious and fatal defect of the [i]nformation” in failing to allege that the giving of unwarranted benefits and advantages was done through manifest partiality, evident bad faith or gross inexcusable negligence.[57][20]

 

        On January 25, 2006, the Sandiganbayan promulgated the assailed resolution[58][21] suspending the petitioner pendente lite

 

WHEREFORE, PREMISES CONSIDERED, the Prosecution’s Motion is GRANTED. As prayed for, the Court hereby orders the suspension of [the petitioner] from his position as City Mayor, KoronadalCity, South Cotabato, and from any other public position he now holds. His suspension shall be for a period of ninety (90) days only.[59][22]

 

 

        On February 2, 2006, the petitioner moved for reconsideration of his suspension order and demanded for a pre-suspension hearing.[60][23]  The Sandiganbayan denied his motion,[61][24] prompting him to file this certiorari petition to challenge the validity of his suspension order.

 

 

THE PETITION

 

 

        The petitioner claims that the Sandiganbayan gravely abused its discretion in ordering his suspension despite the failure of the information to allege that the giving of unwarranted benefits and advantages by the petitioner was made through “manifest partiality, evident bad faith or gross inexcusable negligence.” He alleges that the phrases “evident bad faith” and “manifest partiality” actually refers not to him, but to his co-accused,[62][25] rendering the information fatally defective.

The petitioner bewails the lack of hearing before the issuance of his suspension order. Citing Luciano, et al. v. Hon. Mariano, etc., et al.,[63][26] he claims that “[n]owhere in the records of the [case] can [one] see any order or resolution requiring the [p]etitioner to show cause at a specific date of hearing why he should not be ordered suspended.”[64][27] For the petitioner, the requirement of a pre-suspension hearing can only be satisfied if the Sandiganbayan ordered an actual hearing to settle the “defect” in the information.  

 

THE OSP’S COMMENT

 

 

        The OSP argues for the sufficiency of the information since all the elements of the offense under Section 3(b) of R.A. No. 3019 are specifically pleaded by way of ultimate facts.  These elements are:

 

  1. The petitioner was the Municipal Mayor of Koronadal, South Cotabato at the time material to the acts complained of;

 

  1. The petitioner acted with manifest partiality and evident bad faith when he invited only his co-accused private individuals to participate in the prequalification of consultants for the project instead of publishing it in a newspaper of general circulation; and

 

  1. The petitioner’s actions, performed in relation to his office, gave unwarranted benefits and advantages to his co-accused.[65][28]

 

The OSP faults the petitioner for his attempt to mislead the Court on the sufficiency of the allegations in the information, by conveniently failing to cite the phrase “acting with evident bad faith and manifest partiality” when the petitioner quoted the “relevant” portions of the information in his petition.  

 

Citing Juan v. People,[66][29] the OSP argues that while no actual pre-suspension hearing was conducted, the events preceding the issuance of the suspension order already satisfied the purpose of conducting a pre-suspension hearing – i.e., basically, to determine the validity of the information. Here, the petitioner was afforded his right to preliminary investigation both by the Ombudsman and by the OSP (when the petitioner moved for a reinvestigation with the Sandiganbayan); the acts for which the petitioner was charged constitute a violation of R.A. No. 3019 and Title VII, Book II of the Revised Penal Code; and the petitioner already moved to quash the information, although unsuccessfully, after he had been declared to have waived his right to submit countervailing evidence in the reinvestigation by the OSP.[67][30]  

 

ISSUES

 

There are only two issues presented for our resolution:

 

  1. Whether the information, charging the petitioner with violation of Section 3(e) of R.A. No. 3019, is valid; and

 

  1. If it is valid, whether the absence of an actual pre-suspension hearing renders invalid the suspension order against the petitioner. 

 

THE COURT’S RULING

 

We dismiss the petition for failure to establish any grave abuse of discretion in the issuance of the assailed resolutions.

 

The information for violation of R.A. No. 3019 is valid

 

        In deference to the constitutional right of an accused to be informed of the nature and the cause of the accusation against him,[68][31] Section 6, Rule 110 of the Revised Rules of Criminal Procedure (Rules)[69][32] requires, inter alia, that the information shall state the designation of the offense given by the statute and the acts or omissions imputed which constitute the offense charged. Additionally, the Rules requires that these acts or omissions and its attendant circumstances “must be stated in ordinary and concise language” and “in terms sufficient to enable a person of common understanding to know what offense is being charged x  x  x  and for the court to pronounce judgment.”[70][33]

 

The test of the information’s sufficiency is whether the crime is described in intelligible terms and with such particularity with reasonable certainty so that the accused is duly informed of the offense charged. In particular, whether an information validly charges an offense depends on whether the material facts alleged in the complaint or information shall establish the essential elements of the offense charged as defined in the law. The raison d’etre of the requirement in the Rules is to enable the accused to suitably prepare his defense.[71][34]

 

In arguing against the validity of the information, the petitioner appears to go beyond the standard of a “person of common understanding” in appreciating the import of the phrase “acting with evident bad faith and manifest partiality.” A reading of the information clearly reveals that the phrase “acting with evident bad faith and manifest partiality” was merely a continuation of the prior allegation of the acts of the petitioner, and that he ultimately acted with evident bad faith and manifest partiality in giving unwarranted benefits and advantages to his co-accused private individuals. This is what a plain and non-legalistic reading of the information would yield.             

 

Notably, in his petition, the petitioner would have us believe that this elemental phrase was actually omitted in the information[72][35] when, in his reaction to the OSP’s comment, what the petitioner actually disputes is simply the clarity of the phrase’s position, in relation with the other averments in the information. Given the supposed ambiguity of the subject being qualified by the phrase “acting with evident bad faith and manifest partiality,” the remedy of the petitioner, if at all, is merely to move for a bill of particulars and not for the quashal of an information which sufficiently alleges the elements of the offense charged.[73][36] 

 

 

 

The pre-suspension order is valid

 

 

Section 13 of R.A. No. 3019 reads:

 

Section 13. Suspension and loss of benefits. Any public officer against whom any criminal prosecution under a valid information under this Act or under the provisions of the Revised Penal Code on bribery is pending in court, shall be suspended from office. Should he be convicted by final judgment, he shall lose all retirement or gratuity benefits under any law, but if he is acquitted, he shall be entitled to reinstatement and to the salaries and benefits which he failed to receive during suspension, unless in the meantime administrative proceedings have been filed against him.

 

While the suspension of a public officer under this provision is mandatory,[74][37] the suspension requires a prior hearing to determine “the validity of the information”[75][38] filed against him, “taking into account the serious and far reaching consequences of a suspension of an elective public official even before his conviction.”[76][39]  The accused public official’s right to challenge the validity of the information before a suspension order may be issued includes the right to challenge the (i) validity of the criminal proceeding leading to the filing of an information against him, and (ii) propriety of his prosecution on the ground that the acts charged do not constitute a violation of R.A. No. 3019 or of the provisions on bribery of the Revised Penal Code.[77][40]

In Luciano v. Mariano[78][41] that the petitioner relied upon, the Court required, “by way of broad guidelines for the lower courts in the exercise of the power of suspension,” that –

 

(c) …upon the filing of such information, the trial court should issue an order with proper notice requiring the accused officer to show cause at a specific date of hearing why he should not be ordered suspended from office pursuant to the cited mandatory provisions of the Act. Where either the prosecution seasonably files a motion for an order of suspension or the accused in turn files a motion to quash the information or challenges the validity thereof, such show-cause order of the trial court would no longer be necessary. What is indispensable is that the trial court duly hear the parties at a hearing held for determining the validity of the information, and thereafter hand down its ruling, issuing the corresponding order of suspension should it uphold the validity of the information or withholding such suspension in the contrary case.

 

 

(d) No specific rules need be laid down for such pre-suspension hearing. Suffice it to state that the accused should be given a fair and adequate opportunity to challenge the validity of the criminal proceedings against him, e.g. that he has not been afforded the right of due preliminary investigation; that the acts for which he stands charged do not constitute a violation of the provisions of Republic Act No. 3019 or of the bribery provisions of the Revised Penal Code which would warrant his mandatory suspension from office under section 13 of the Act; or he may present a motion to quash the information on any of the grounds provided in Rule 117 of the Rules of Court. (Emphasis supplied)

 

The petitioner questions the absence of any show cause order issued by the Sandiganbayan before his suspension in office was ordered. As clear as the day, however, Luciano considered it unnecessary for the trial court to issue a show cause order when the motion, seeking the suspension of the accused pendente lite, has been submitted by the prosecution, as in the present case.

 

The purpose of the law in requiring a pre-suspension hearing is to determine the validity of the information so that the trial court can have a basis to either suspend the accused and proceed with the trial on the merits of the case, withhold the suspension and dismiss the case, or correct any part of the proceedings that impairs its validity.  That hearing is similar to a challenge to the validity of the information by way of a motion to quash.[79][42]

 

While a pre-suspension hearing is aimed at securing for the accused fair and adequate opportunity to challenge the validity of the information or the regularity of the proceedings against him,[80][43] Luciano likewise emphasizes that no hard and fast rule exists in regulating its conduct.[81][44]  With the purpose of a pre-suspension hearing in mind, the absence of an actual hearing alone cannot be determinative of the validity of a suspension order.

 

In Bedruz v. Sandiganbayan,[82][45]the Court considered the opposition of the accused (to the prosecution’s motion to suspend pendente lite) as sufficient to dispense with the need to actually set the prosecution’s motion for hearing. The same conclusion was reached in Juan v. People,[83][46] where the Court ruled:

 

In the case at bar, while there was no pre-suspension hearing held to determine the validity of the Informations that had been filed against petitioners, we believe that the numerous pleadings filed for and against them have achieved the goal of this procedure. The right to due process is satisfied nor just by an oral hearing but by the filing and the consideration by the court of the parties’ pleadings, memoranda and other position papers.

 

Since a pre-suspension hearing is basically a due process requirement, when an accused public official is given an adequate opportunity to be heard on his possible defenses against the mandatory suspension under R.A. No. 3019, then an accused would have no reason to complain that no actual hearing was conducted.[84][47] It is well settled that “to be heard” does not only mean oral arguments in court; one may be heard also through pleadings. Where opportunity to be heard, either through oral arguments or pleadings, has been accorded, no denial of procedural due process exists.[85][48]

 

In the present case, the petitioner (i) filed his Vigorous Opposition (to the OSP’s Motion to Suspend Accused Pendente Lite), and after receiving an adverse ruling from the Sandiganbayan, (ii) moved for reconsideration of the suspension order issued against him, and (iii) filed a Reply to the OSP’s Opposition to his plea for reconsideration.[86][49]  Given this opportunity, we find that the petitioner’s continued demand for the conduct of an actual pre-suspension hearing – based on the same alleged “defect in the information,”[87][50] which we have found wanting – has legally nothing to anchor itself on.

Another reason that militates against the petitioner’s position relates to the nature of Section 13 of R.A. No. 3019; it is not a penal provision that would call for a liberal interpretation in favor of the accused public official and a strict construction against the State.[88][51]  The suspension required under this provision is not a penalty, as it is not imposed as a result of judicial proceedings; in fact, if acquitted, the accused official shall be entitled to reinstatement and to the salaries and benefits which he failed to receive during his suspension.[89][52]

 

Rather, the suspension under Section 13 of R.A. No. 3019 is a mere preventive measure[90][53] that arises from the legal presumption that unless the accused is suspended, he may frustrate his prosecution or commit further acts of malfeasance or do both, in the same way that upon a finding that there is probable cause to believe that a crime has been committed and that the accused is probably guilty thereof, the law requires the judge to issue a warrant for the arrest of the accused.[91][54]

 

Suspension under R.A. No. 3019 being a mere preventive measure whose duration shall in no case exceed ninety (90) days,[92][55] the adequacy of the opportunity to contest the validity of the information and of the proceedings that preceded its filing vis-à-vis the merits of the defenses of the accused cannot be measured alone by the absence or presence of an actual hearing. An opportunity to be heard on one’s defenses, however unmeritorious it may be, against the suspension mandated by law equally and sufficiently serves both the due process right of the accused and the mandatory nature of the suspension required by law.

 

Lest it be forgotten, Section 13 of R.A. No. 3019 reinforces the principle enshrined in the Constitution that a public office is a public trust.[93][56] In light of the constitutional principle underlying the imposition of preventive suspension of a public officer charged under a valid information and the nature of this suspension, the petitioner’s demand for a trial-type hearing in the present case would only overwhelmingly frustrate, rather than promote, the orderly and speedy dispensation of justice.

 

WHEREFORE, we hereby DISMISS the petition for lack of merit.

SO ORDERED.

 

 

 

                                        ARTURO D. BRION

                                           Associate Justice

 

 

 

WE CONCUR:

 

 

 

 

 

ANTONIO T. CARPIO

Senior Associate Justice

Chairperson

 

 

 

 

 

JOSE PORTUGAL PEREZ

Associate Justice

MARIA LOURDES P. A. SERENO

Associate Justice

 

 

 

 

 

BIENVENIDO L. REYES

Associate Justice

 

 

 

 

 

 

 

 

 

 

 

 

 

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

 

 

        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’s Division.

 

 

 

 

                                        ANTONIO T. CARPIO

                                         Senior Associate Justice

(Per Section 12, R.A. 296,

The Judiciary Act of 1948, as amended)

 


 


[1][33]      Section 9, Rule 110 of the Revised Rules of Criminal Procedure reads:

SEC. 9. Cause of the accusation. — The acts or omissions complained of as constituting the offense and the qualifying and aggravating circumstances must be stated in ordinary and concise language and not necessarily in the language used in the statute but in terms sufficient to enable a person of common understanding to know what offense is being charged as well as its qualifying and aggravating circumstance and for the court to pronounce judgment.

[2][31]      CONSTITUTION, Article III, Section 14(2).

[3][32]      Section 6, Rule 110 of the Revised Rules of Criminal Procedure reads:

SEC. 6. Sufficiency of complaint or information. — A complaint or information is sufficient if it states the name of the accused; the designation of the offense given by the statute; the acts or omissions complained of as constituting the offense; the name of the offended party; the approximate date of the commission of the offense; and the place where the offense was committed.

 

When an offense is committed by more than one person, all of them shall be included in the complaint or information.

[4][33]      Section 9, Rule 110 of the Revised Rules of Criminal Procedure reads:

SEC. 9. Cause of the accusation. — The acts or omissions complained of as constituting the offense and the qualifying and aggravating circumstances must be stated in ordinary and concise language and not necessarily in the language used in the statute but in terms sufficient to enable a person of common understanding to know what offense is being charged as well as its qualifying and aggravating circumstance and for the court to pronounce judgment.

[5][34]      Lazarte, Jr. v. Sandiganbayan, G.R. No. 180122, March 13, 2009, 581 SCRA 431.

[6][34]      Lazarte, Jr. v. Sandiganbayan, G.R. No. 180122, March 13, 2009, 581 SCRA 431.

[7][35]      See Dela Chica v. Sandiganbayan, G.R. No. 144823, December 8, 2003, 417 SCRA 242.

[8][36]      REVISED RULES OF CRIMINAL PROCEDURE, Rule 116, Section 9; and Romualdez v. Sandiganbayan, G.R. No. 152259, July 29, 2004, 435 SCRA 371, 388-389.

[9][38]      Luciano, et al. v. Hon. Mariano, etc, et al., supra note 26, at 183-184; and People v. Albano, Nos. L-45376-77, July 26, 1988, 163 SCRA 511, 517.

[10][39]     Ibid.

[11][40]     People v. Albano, supra note 38, at 518-519; and Socrates v. Sandiganbayan, supra note 30, at 179.

[12][37]     Flores v. Layosa, G.R. No. 154714, August 12, 2004, 436 SCRA 337, 345.

[13][38]     Luciano, et al. v. Hon. Mariano, etc, et al., supra note 26, at 183-184; and People v. Albano, Nos. L-45376-77, July 26, 1988, 163 SCRA 511, 517.

[14][39]     Ibid.

[15][40]     People v. Albano, supra note 38, at 518-519; and Socrates v. Sandiganbayan, supra note 30, at 179.

[16][49]     Rollo, p. 109.

[17][50]     Id. at 95.

[18][45]     G.R. No. 161640, December 9, 2005, 513 Phil. 400 (2005).

[19][41]     Supra note 26, at 192-193.

[20][42]     Talaga, Jr. v. Sandiganbayan, G.R. No. 169888, November 11, 2008, 570 SCRA 622, 632.

[21][43]     Segovia v. Sandiganbayan,G.R. No. 124067, March 27, 1998, 288 SCRA 328, 339.

[22][44]     Santiago v. Sandiganbayan, G.R. No. 128055, April 18, 2001, 356 SCRA 636, 645;and Flores v. Layosa, G.R. No. 154714, August 12, 2004, supra note 37, at 345-346.

[23][45]     G.R. No. 161640, December 9, 2005, 513 Phil. 400 (2005).

[24][46]     Supra note 29, at 140.

[25][47]     Flores v. Layosa, supra note 37, at 345-346.

[26][48]     Tan v. Atty. Balon, Jr., A.C. No. 6483, August 31, 2007, 531 SCRA 645, 655-656.

[27][49]     Rollo, p. 109.

[28][50]     Id. at 95.

[29][52]     Bayot v. Sandiganbayan, No. L-61776 to No. L-61861, March 23, 1984, 128 SCRA 383.

[30][53]     Villaseñor v. Sandiganbayan, supra note 50, at 666-667;and Segovia v. Sandiganbayan, supra note 43, at 336.

[31][54]     Bolastig v. Sandiganbayan, G.R. No. 110503, August 4, 1994, 235 SCRA 103, 108.

[32][51]     Villaseñor v. Sandiganbayan, G.R. No. 180700, March 4, 2008, 547 SCRA 658, 666-668.

[33][52]     Bayot v. Sandiganbayan, No. L-61776 to No. L-61861, March 23, 1984, 128 SCRA 383.

[34][53]     Villaseñor v. Sandiganbayan, supra note 50, at 666-667;and Segovia v. Sandiganbayan, supra note 43, at 336.

[35][54]     Bolastig v. Sandiganbayan, G.R. No. 110503, August 4, 1994, 235 SCRA 103, 108.

[36][55]     Deloso v. Sandiganbayan, G.R. Nos. 86899-903, May 15, 1989, 173 SCRA 409, 419.

[37][56]     CONSTITUTION, Article XI, Section 1; Berona v. Sandiganbayan, G.R. No. 142456, July 27, 2004, 435 SCRA 303.

[38][1]      RULES OF COURT.

[39][2]      Penned by Associate Justice Godofredo L. Legaspi, and concurred in by Associate Justices Efren N. dela Cruz and Norberto Y. Geraldez, Sr.

[40][3]      The Sangguniang Bayan members-complainants are as follows: Rose Dideles, Rene Jumilla, Pablito Subere and Edwin Abris; rollo, p. 5. 

[41][4]      Id.at 83.

[42][5]      Gaspar E. Nepomuceno, Jesus G. Casus, Ernesto R. Lagdameo, Jr., Bonifacio M. Madarcos, and Vinci Nicholas R. Villaseñor; id. at 103.

[43][6]      Id.at 110-113.

[44][7]      Id.at 124-125. 

[45][8]      Id.at 5 and 83.

[46][9]      The case for violation of R.A. No. 3019 was docketed as Criminal Case No. 25819 (id. at 103). The Office of the Special Prosecutor filed a Motion to drop Ernesto R. Lagdameo, Jr., Bonifacio M. Madarcos, Jesus G. Casus and Vinci Nicholas R. Villaseñor from the Information (id. at 106 and 108). The falsification case was docketed as Criminal Case No. 25820 (id. at 103).

[47][10]     Id.at 117.

[48][11]     On March 3, 2000 and June 5, 2000, Bonifacio M. Madarcos and Ernesto R. Lagdameo, Jr., respectively, filed a Motion for Reinvestigation; id. at 103-104.

[49][12]     Id.at 104.

[50][13]     Dated August 30, 2000; ibid.

[51][14]     Dated September 28, 2000; id. at 105.

[52][15]     Dated October 29, 2000; ibid.

[53][16]     Id.at 106.

[54][17]     Ibid.

[55][18]     Id.at 27.

[56][19]     Id.at 6.

[57][20]     Id.at 6-7.

[58][21]     Id.at 21-24.

[59][22]     Id.at 24.

[60][23]     Id. at 13.

[61][24]     Id.at 26-28.

[62][25]     Id.at 67.

[63][26]     148-B Phil. 178 (1971).

[64][27]     Rollo, pp. 13-14.

[65][28]     Rollo, p. 45.

[66][29]     379 Phil. 125 (2000).

[67][30]     Citing Socrates v. Sandiganbayan, 324 Phil. 151 (1996).

[68][31]     CONSTITUTION, Article III, Section 14(2).

[69][32]     Section 6, Rule 110 of the Revised Rules of Criminal Procedure reads:

SEC. 6. Sufficiency of complaint or information. — A complaint or information is sufficient if it states the name of the accused; the designation of the offense given by the statute; the acts or omissions complained of as constituting the offense; the name of the offended party; the approximate date of the commission of the offense; and the place where the offense was committed.

 

When an offense is committed by more than one person, all of them shall be included in the complaint or information.

[70][33]     Section 9, Rule 110 of the Revised Rules of Criminal Procedure reads:

SEC. 9. Cause of the accusation. — The acts or omissions complained of as constituting the offense and the qualifying and aggravating circumstances must be stated in ordinary and concise language and not necessarily in the language used in the statute but in terms sufficient to enable a person of common understanding to know what offense is being charged as well as its qualifying and aggravating circumstance and for the court to pronounce judgment.

[71][34]     Lazarte, Jr. v. Sandiganbayan, G.R. No. 180122, March 13, 2009, 581 SCRA 431.

[72][35]     See Dela Chica v. Sandiganbayan, G.R. No. 144823, December 8, 2003, 417 SCRA 242.

[73][36]     REVISED RULES OF CRIMINAL PROCEDURE, Rule 116, Section 9; and Romualdez v. Sandiganbayan, G.R. No. 152259, July 29, 2004, 435 SCRA 371, 388-389.

[74][37]     Flores v. Layosa, G.R. No. 154714, August 12, 2004, 436 SCRA 337, 345.

[75][38]     Luciano, et al. v. Hon. Mariano, etc, et al., supra note 26, at 183-184; and People v. Albano, Nos. L-45376-77, July 26, 1988, 163 SCRA 511, 517.

[76][39]     Ibid.

[77][40]     People v. Albano, supra note 38, at 518-519; and Socrates v. Sandiganbayan, supra note 30, at 179.

[78][41]     Supra note 26, at 192-193.

[79][42]     Talaga, Jr. v. Sandiganbayan, G.R. No. 169888, November 11, 2008, 570 SCRA 622, 632.

[80][43]     Segovia v. Sandiganbayan,G.R. No. 124067, March 27, 1998, 288 SCRA 328, 339.

[81][44]     Santiago v. Sandiganbayan, G.R. No. 128055, April 18, 2001, 356 SCRA 636, 645;and Flores v. Layosa, G.R. No. 154714, August 12, 2004, supra note 37, at 345-346.

[82][45]     G.R. No. 161640, December 9, 2005, 513 Phil. 400 (2005).

[83][46]     Supra note 29, at 140.

[84][47]     Flores v. Layosa, supra note 37, at 345-346.

[85][48]     Tan v. Atty. Balon, Jr., A.C. No. 6483, August 31, 2007, 531 SCRA 645, 655-656.

[86][49]     Rollo, p. 109.

[87][50]     Id. at 95.

[88][51]     Villaseñor v. Sandiganbayan, G.R. No. 180700, March 4, 2008, 547 SCRA 658, 666-668.

[89][52]     Bayot v. Sandiganbayan, No. L-61776 to No. L-61861, March 23, 1984, 128 SCRA 383.

[90][53]     Villaseñor v. Sandiganbayan, supra note 50, at 666-667;and Segovia v. Sandiganbayan, supra note 43, at 336.

[91][54]     Bolastig v. Sandiganbayan, G.R. No. 110503, August 4, 1994, 235 SCRA 103, 108.

[92][55]     Deloso v. Sandiganbayan, G.R. Nos. 86899-903, May 15, 1989, 173 SCRA 409, 419.

[93][56]     CONSTITUTION, Article XI, Section 1; Berona v. Sandiganbayan, G.R. No. 142456, July 27, 2004, 435 SCRA 303.

CASE 2012-0063: PHILIPPINE INTERNATIONAL AIR TERMINALS CO., INC. VS. TAKENAKA CORPORATION AND ASAHIKOSAN CORPORATION (G.R. NO. 180245, 04 JULY 2012, PERALTA, J.) SUBJECTS: WHAT IS GRAVE ABUSE OF DISCRETION; WHAT IS MEANT BY HEARING; RULE ON VERIFICATION/CERTIFICATION ON NON-FORUM SHOPPING RELAXED.   (BRIEF TITLE: PIATCO VS. TAKENAKA CORP)

 

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

 

 

DISPOSITIVE:

 

 

IN VIEW OF THE FOREGOING, the petition is DENIED.  The Court of Appeal’s Decision dated July 27, 2007, and the CA Resolutiondated October 23, 2007 in CA-G.R. SP No. 98166 are hereby AFFIRMED.

 

SO ORDERED.

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

 

SUBJECTS/DOCTRINES/DIGEST:

 

 

WHAT IS MEANT BY GROSS ABUSE OF DISCRETION?

 

 

BY GRAVE ABUSE OF DISCRETION IS MEANT SUCH CAPRICIOUS OR WHIMSICAL EXERCISE OF JUDGMENT AS IS EQUIVALENT TO LACK OF JURISDICTION.  THE ABUSE OF DISCRETION MUST BE PATENT AND GROSS AS TO AMOUNT TO AN EVASION OF A POSITIVE DUTY OR A VIRTUAL REFUSAL TO PERFORM A DUTY ENJOINED BY LAW, OR TO ACT AT ALL IN CONTEMPLATION OF LAW AS WHERE THE POWER IS EXERCISED IN AN ARBITRARY AND DESPOTIC MANNER BY REASON OF PASSION AND HOSTILITY.  IN SUM, FOR THE EXTRAORDINARY WRIT OF CERTIORARI TO LIE, THERE MUST BE CAPRICIOUS, ARBITRARY OR WHIMSICAL EXERCISE OF POWER.[1][6]

 

 

The Court does not see any reason to overturn the CA’s finding that there was no grave abuse of discretion on the part of the trial court in denying the Motion to Dismiss and the Motion to Set the Motion to Dismiss for Hearing.   The established definition of grave abuse of discretion was reiterated in Ligeralde v. Patalinghug[2][5] in this wise:

 

x   x   x   By grave abuse of discretion is meant such capricious or whimsical exercise of judgment as is equivalent to lack of jurisdiction.  The abuse of discretion must be patent and gross as to amount to an evasion of a positive duty or a virtual refusal to perform a duty enjoined by law, or to act at all in contemplation of law as where the power is exercised in an arbitrary and despotic manner by reason of passion and hostility.  In sum, for the extraordinary writ of certiorari to lie, there must be capricious, arbitrary or whimsical exercise of power.[3][6]  (Emphases supplied)

 

XXXXXXXXXXXXXXX

 

 

PETITIONER ARGUED THAT WHILE THERE WAS A SCHEDULED HEARING ON 07 APRIL 2006, THE PARTIES WERE ONLY ALLOWED TO FILE PLEADINGS BUT THERE WAS NO ACTUAL HEARING WHERE THE PARTIES WERE ALLOWED TO PRESENT EVIDENCE. WAS THERE DENIAL OF DUE PROCESS?

 

 

NO. IT IS AN OFT-REPEATED PRINCIPLE THAT WHERE OPPORTUNITY TO BE HEARD, EITHER THROUGH ORAL ARGUMENTS OR PLEADINGS, IS ACCORDED, THERE IS NO DENIAL OF DUE PROCESS.[4][7]

 

 

In this case, there is no showing of such capricious or whimsical exercise of judgment or arbitrary and despotic exercise of power committed by the trial court.  In fact, records reveal that both parties were given ample opportunity to be heard.  A hearing on the Motion to Dismiss was, in fact, held on    April 7, 2006.  Thereafter, both parties submitted their pleadings setting forth their claims, arguments and supporting evidence.  Petitioner points out that at the April 7, 2006 hearing, the parties were only allowed to file their pleadings, and no actual hearing, or presentation of evidence, was conducted.   It is an oft-repeated principle that where opportunity to be heard, either through oral arguments or pleadings, is accorded, there is no denial of due process.[5][7]  Moreover, the issues that petitioner seeks to tackle in the requested hearing on the motion to dismiss, i.e., novation, payment, extinguishment or abandonment of the obligation, are the meat of their defense and would require the presentation of voluminous evidence.  Such issues are better threshed out during trial proper.  Thus, the trial court was not amiss in ruling that petitioner already had the opportunity to be heard and there was no longer any need to set another hearing on the motion to dismiss.

 

XXXXXXXXXXXX

 

 

WHAT IS THE PROOF THAT THERE WAS NO GRAVE ABUSE OF DISCRETION ON THE PART OF THE TRIAL COURT?

 

 

THE TRIAL COURT CONSIDERED ALL EVIDENCE AND ARGUMENTS ADVANCED BY BOTH PARTIES.

 

 

        It also appears from the RTC’s Orders and the CA’s Decision that any and all evidence and argument advanced by both parties were seriously taken into consideration by said lower courts in arriving at their rulings.  Such being the case, there could be no grave abuse of discretion committed by the trial court.

 

XXXXXXXXXXXXXXXXX

 

 

PLAINTIFF CORPORATION SUBMITTED ONLY AN SPA AND NOT A BOARD RESOLUTION TO SHOW THE AUTHORITY OF THE SIGNATORY OF THE VERIFICATION/CERTIFICATION ON NON-FORUM SHOPPING. IS THIS DEFECT SUFFICIENT TO CAUSE THE DISMISSAL OF THE CASE?

 

 

NO. THE COURT MAY RELAX THE APPLICATION OF PROCEDURAL RULES FOR THE GREATER INTEREST OF SUBSTANTIAL JUSTICE. THIS CASE IS ONE OF THOSE THAT DESERVES A MORE LENIENT APPLICATION OF PROCEDURAL RULES, CONSIDERING THAT IT AFFECTS ONE OF THE MOST IMPORTANT PUBLIC UTILITIES OF OUR COUNTRY. 

 

 

        Lastly, on the issue of the Verification/Certification, the court has the power to give due course to the complaint even with the supposed defect, if special circumstances warrant.  Even assuming arguendo, that the form used to show Mr. Kurebayashi’s authority to execute the Verification and Certification Against Forum Shopping is defective, petitioner should bear in mind that this Court may relax the application of procedural rules for the greater interest of substantial justice.  Thus, in Cua, Jr. v. Tan,[6][8] this Court explained thus:

 

x  x  x Although the submission of a certificate against forum shopping is deemed obligatory, it is not jurisdictional. Hence, in this case in which such a certification was in fact submitted – only, it was defective – the  Court may still refuse to dismiss and may, instead, give due course to the Petition in light of attendant exceptional circumstances.
          x x x x                  

 

x x x [I]n the interest of substantial justice, the strict application of procedural technicalities should not hinder the speedy disposition of this case on the merits.   x  x  x

 

          x x x x                  

 

x  x  x  Indeed, where, as here, there is a strong showing that a grave miscarriage of justice would result from the strict application of the Rules, the Court will not hesitate to relax the same in the interest of substantial justice. It bears stressing that the rules of procedure are merely tools designed to facilitate the attainment of justice. They were conceived and promulgated to effectively aid the court in the dispensation of justice. Courts are not slaves to or robots of technical rules, shorn of judicial discretion. In rendering justice, courts have always been, as they ought to be, conscientiously guided by the norm that, on the balance, technicalities take a backseat against substantive rights, and not the other way around. Thus, if the application of the Rules would tend to frustrate rather than promote justice, it is always within the power of the Court to suspend the Rules, or except a particular case from its operation.[7][9]  (Emphasis supplied)   

 

 

        This case is one of those that deserves a more lenient application of procedural rules, considering that it affects one of the most important public utilities of our country.  In Agan, Jr. v. Philippine International Air Terminals Co., Inc.,[8][10] this Court has already stated that these cases involving the construction and operation of the country’s premier international airport, has attained transcendental importance.[9][11]  Therefore, the Court sees it fit to relax the rules in this case to arrive at a full settlement of the parties’ claims and avoid further delay in the administration of justice.

 

 

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

 

 

Republic of thePhilippines

Supreme Court

Manila

 

 

    THIRD DIVISION

 

PHILIPPINE INTERNATIONAL AIR TERMINALS CO., INC.,

                               Petitioner,

 

 

 

versus

 

 

 

TAKENAKA CORPORATION and ASAHIKOSAN CORPORATION,

                               Respondents.

G.R. No. 180245

 

Present:

 

VELASCO, JR., J., Chairperson,

PERALTA,

MENDOZA,

REYES,* and

PERLAS-BERNABE, JJ.

 

Promulgated:

 

    July 4, 2012

x—————————————————————————————-x

 

 

D E C I S I O N

 

 

PERALTA, J.:

 

        This resolves the Petition for Review on Certiorari under Rule 45 of the Rules of  Court, praying that the Decision[10][1] of the Court of Appeals (CA), dated July 27, 2007, and the CA Resolution[11][2] dated October 23, 2007, denying herein petitioner’s motion for partial reconsideration, be reversed and set aside.

 

        The antecedent facts were accurately narrated in the CA Decision as follows.

In 1997, by way of a Concession Agreement, the Philippine Government awarded to petitioner the right to build and operate the NAIA International Passenger Terminal III (“NAIA IPT3”).  Petitioner then contracted respondents Takenaka Corporation, and Asahikosan Corporation (“private respondents”) to construct and equip NAIA IPT3.

 

          Private respondents are both foreign corporations organized under the laws ofJapan, but only respondent Takenaka Corporation is licensed to do business in thePhilippinesthrough its local branch office.

 

          Claiming that petitioner made no further payments after May 2002 despite continued performance of their obligations, private respondents filed two collection suits before the High Court of Justice, Queen’s Bench Division, Technology and Construction Court in London, England (“London Court”), docketed as Claim No. HT-04-248 and Claim No. HT-05-269.  In both claims, respondent Takenaka Corporation was designated as the First Claimant and respondent Asahikosan Corporation, the Second Claimant.

 

          Ruling in favor of private respondents, the London Courtissued an Order dated February 18, 2005 in Claim No. HT-04-248 and an Order dated December 2, 1005 in Claim No. HT-05-269, directing that –

 

   Claim No. HT-04-248

 

“1.  Judgment be entered for the First Claimant in the sum of 6,602,971.00United Statesdollars, together with interest in the sum of 116,825,365.34 Philippine pesos up to and including 18 February 2005.

 

2.                 Judgment be entered for the Second Claimant in the sum of 8,224,236.00United Statesdollars, together with interest in the sum of 2,947,564.87United Statesdollars up to and including 18 February 2005, being a total of 11,171,800.87United Statesdollars.

 

3.                 Save for the costs of and caused by the amendment of the particulars of claim, which will be the subject of a separate order, the Defendant to pay the First Claimant’s and the Second Claimant’s costs in the action, to be subject to detailed assessment if not agreed.”

 

    Claim No. HT-05-269

 

“1.  Judgment be entered for the First Claimant in the sum of 21,688,012.18United Statesdollars, together with interest in the sum of 6,052,805.83United Statesdollars.

 

2.                 Judgment be entered for the Second Claimant in the sum of 30,319,248.36United Statesdollars, together with interest in the sum of 5,442,628.26United Statesdollars.

 

 

3.                 The Defendant to pay the Claimants’ costs in the action, to be subject to detailed assessment if not agreed.”

 

          On March 1, 2006, private respondents filed a Complaint, docketed as Civil Case No. 06-171, before the Regional Trial Court of Makati City, Br. 58, to enforce the aforesaid Orders of theLondon Court.

 

          Petitioner filed a Motion to Dismiss the Complaint on the grounds of: (a)  defective verification and certification against forum shopping, because there was no board resolution showing that Mr. Takeshi Kurebayashi was authorized by private respondents to sign the verification and certification of non-forum shopping, and the special powers of attorney executed in favor of Mr. Kurebayashi by the Executive Vice-President and President of respondents Takenaka Corporation and Asahikosan Corporation, respectively, were not only insufficient but also improperly authenticated since the said officers never personally appeared before the notary public, and finally, Mr. Kurebayashi was not competent to guarantee that respondent Asahikosan Corporation has not engaged in forum shopping, not being an employee or member of the said corporation; (b) forum shopping, because the Complaint was allegedly private respondents’ third attempt to file the same claim, the first attempt being private respondents’ voluntary submission to the jurisdiction of the Pasay Court in Civil Case No. 04-0876, the expropriation case filed by the Republic of the Philippines against herein petitioner, where private respondents manifested that they are not objecting to the taking of the condemned property (NAIA IPT3), provided that they are justly compensated for their claims as unpaid contractors, and the second attempt having been made before the Supreme Court in G.R. No. 166429 where private respondents moved for partial reconsideration (in intervention) of the Supreme Court’s decision affirming, with modification, the Pasay Court’s Order allowing the full release to herein petitioner of the funds deposited by the Republic of the Philippines for the expropriation of the NAIA IPT3; (c ) payment, novation, abandonment or extinguishment of the claims, inasmuch as private respondents have allegedly entered into a contract with the Philippine government pursuant to which private respondents supposedly received payment of US$10Million from the Philippine government, with the latter committing to deliver more; and (d) non-compliance with a condition precedent, because petitioner failed to resort to arbitration before the Construction Industry Arbitration Commission (CIAC) as allegedly provided by the terms of the parties’ agreement.

 

          During the hearing of the Motion to Dismiss on April 7, 2006, private respondents asked for time to file their Opposition.  Private respondents subsequently filed their Opposition, which was followed by petitioner’s Reply, private respondents’ Rejoinder and petitioner’s Sur-Rejoinder.

 

          On May 9, 2006, petitioner filed a Motion to Set its Motion to Dismiss for hearing, to enable it to present evidence on the alleged payment, novation and extinguishment of its obligations to private respondents.  Thereafter, petitioner filed a Request for Subpoena Duces Tecum Ad Testificandum to direct Mr. Takeshi Kurebayashi to appear and testify in court, and to bring the alleged General Framework Agreement (“GFA”) between private respondents and the Philippine government as represented by the Manila International Airport Authority (MIAA).  Petitioner likewise filed a Motion for Production and Inspection of Documents to require private respondents, or any of its officers and representatives, to produce and permit the inspection, copying and photographing of the GFA by petitioner.

 

          Private respondents opposed the said Motions and Request, arguing that the Motion to Dismiss need not be heard anew because the ground sought to be proved, i.e., payment, novation or extinguishment of obligation, was based on mere newspaper reports which are hearsay evidence.  Private respondents also asserted that Mr. Kurebayashi may not be compelled to testify as an adverse party witness without first being served interrogatories.  They further argued that discovery of documents may not be allowed until the answer is filed since the materiality of the document requested cannot be determined until the issues are joined.  And assuming for the sake of argument that petitioner could prove the partial payment of US$10Million, the payment would allegedly not extinguish petitioner’s total obligation as to result in the dismissal of the action.

 

          Petitioner thereafter filed with the trial court, and served upon the President of respondent Takenaka Corporation, Written Interrogatories which, among others, asked if Takenaka entered into a General Framework Agreement with the Philippine government, what its salient features are, and if any amount has been paid to Takenaka by the Philippine government.

 

          Private respondents moved to expunge the Written Interrogatories, arguing that written interrogatories cannot be served without leave of court before an Answer has been filed.

 

          On June 26, 2006, petitioner filed a Motion for Leave to serve its Written Interrogatories on the President of respondent Takenaka Corporation.  That same day, respondent judge issued the first assailed Omnibus Order denying petitioner’s Motion to Dismiss, Motion to Set the Motion to Dismiss for hearing, Motion for Production and Inspection of Documents, and Written Interrogatories.

 

          Respondent judge held that Mr. Takeshi Kurebayashi was duly authorized to represent both private respondents noting the Special Powers of Attorney attached to the Verification and Certification against Forum Shopping, which were executed by the representative directors of private respondents, and accompanied by Notarial Certificates executed in Tokyo by a Japanese Notary, giving authority to Mr. Kurebayashi to file the Complaint.  Respondent judge observed that under Articles 261 and 78 of the Commercial Law of Japan, corporations may act through their representative directors, similar to the Executive Committee under Philippine Corporation Law.  Respondent judge held that under the principle of lex loci celebrationis, the validity of the Special Powers of Attorney is determined by the law of the place where they were executed.

 

          Respondent judge rejected petitioner’s claim of forum shopping, holding that private respondents simply served notice on the Pasay Court and the Supreme Court about their being unpaid contractors.  Respondent judge found that private respondents merely prayed that the said Courts hold in abeyance the release of the funds to petitioner until such time they can enforce the London Court Orders by virtue of a final judgment, which neither the Pasay court nor the Supreme Court may render because the case before them was one for expropriation.

 

          Respondent judge likewise rejected petitioner’s assertion that its obligation has been extinguished by payment or novation.  According to respondent judge, petitioner’s claim that private respondents had entered into a contract with the Philippine government was based on alleged newspaper articles which are inadmissible in evidence for being hearsay.  If at all, said respondent judge, such claim should be raised as an affirmative defense in the Answer and substantiated in a full-blown trial.  And assuming private respondents were indeed paid US$10Million under the alleged contract with the Philippine government, the same is but a small portion of the total amount claimed which is around US$198Million, excluding attorney’s fees and costs of suit.

 

          Anent private respondents’ alleged failure to resort to arbitration, respondent judge held that “this ground, which actually assails the jurisdiction of the foreign court,” is “a matter of affirmative or special defense” which should be threshed out in a trial.

 

          Finally, respondent judge held that the Motion for Production and Inspection of Documents and the Written Interrogatories are modes of discovery that can only be availed of after the Answer has been filed, pursuant to A.M. No. 03-1-09-SC.

 

          Dissatisfied with respondent judge’s ruling, petitioner moved for reconsideration of the June 26, 2006 Omnibus Order.

 

          Noting that petitioner “failed to attach a copy of the alleged General Framework (of) Agreement in its Motion for Reconsideration that will give flesh and blood to its bones of contentions that (private respondents’) claim has already been paid, novated or extinguished,” respondent judge issued his Order dated September 5, 2006, directing petitioner to submit the alleged GFA within 5 days from notice.

 

          Accordingly, petitioner filed a Request for Subpoena Duces Tecum for Alfonso Cusi, General Manager or Records Custodian of MIAA, to bring the GFA, vouchers, receipts and other papers proving MIAA’s alleged payments to respondent Takenaka Corporation.

 

          On September 22, 2006, respondent judge granted petitioner’s request and directed the issuance of the subpoena duces tecum.

 

          On September 27, 2006, the MIAA, through the Office of the Solicitor General, filed a Motion to Quash the subpoena duces tecum, without serving a copy of their motion on the parties.   The MIAA averred that the subpoena was oppressive and unreasonable for it allegedly violated Section 6, Rule 21, and petitioner allegedly failed to show the relevance of the documents sought to be produced.  The MIAA added that “(t)he only objective that (petitioner) has in asking for the GFA is to use against the Government and shift its burden of paying its EPC contractors, Takenaka Corporation and Asahikosan Corporation for the unpaid services rendered before the government expropriated the NAIA Terminal III.”  The MIAA averred that “(petitioner) is venturing into a ‘fishing expedition’ to evade its obligations to Takenaka Corporation and Asahikosan Corporation, and shifting the burden to the Government.”

 

          On October 9, 2006, respondent judge issued the second assailed Order quashing the subpoena duces tecum, because the MIAA was not given ample opportunity to prepare for the submission of the requested document, and because petitioner had to show the relevancy of the said document in the light of MIAA’s contention that petitioner is merely shifting the burden to pay its contractors for unpaid services rendered before the expropriation of the NAIA IPT3.

 

          Consequently, petitioner moved for reconsideration of the October 9, 2006 Order.

 

          On January 15, 2007, respondent judge issued the third assailed Omnibus Order, denying petitioner’s motions for reconsideration of the assailed June 26, 2006 Omnibus Order, and October 9, 2006 Order. [12][3]

 

        Petitioner then filed a petition for certiorari, prohibition and mandamus with the CA, alleging that the trial court committed grave abuse of discretion amounting to lack or excess of jurisdiction when it refused to set another hearing for the motion to dismiss, when it denied the Motion to Dismiss and the Motion for Production and Inspection of Documents, and the Written Interrogatories.  The CA ruled that since a hearing on the Motion to Dismiss was held on April 7, 2006 and, thereafter, both parties filed an exchange of pleadings, then petitioner had reasonable opportunity to be heard, which was the essence of due process.   The CA concluded that the trial court did not commit grave abuse of discretion in denying petitioner’s motion to dismiss and the motion to set said motion for hearing.  However, the CA ruled that it was grave abuse of discretion for the trial judge not to grant the motion for production and inspection of documents and written interrogatories, because Section 1, Rule 25, in relation to Section 1, Rule 23 provides that written interrogatories may be served even before the Answer is filed so long as leave of court has been obtained, and Section 1, Rule 27 states that the motion for production of documents or things may be filed while the action is pending, which includes the period before the Answer is filed.  With regard to the quashal of the subpoena duces tecum,  the CA held that MIAA’s Motion to Quash should not have been acted upon by the trial court because it did not contain a Notice of Hearing, making it a mere scrap of paper. Thus, it held that the issuance of the Order dated October 9, 2007 quashing the subject subpoena was done with grave abuse of discretion.   On July 27, 2007, the CA rendered the assailed Decision, disposing as follows:

 

         WHEREFORE, the petition is GRANTED IN PART.  The assailed Order dated October 9, 2006, which quashed the subpoena duces tecum, is hereby SET ASIDE.  The assailed Omnibus Order dated June 26, 2006 is SET ASIDE IN PART insofar as it denied petitioner’s Motion for Production and Inspection of Documents and Written Interrogatories.  The assailed Omnibus Order dated January 15, 2007 is likewise SET ASIDE IN PART insofar as it denied reconsideration of the June 26, 2006 denial of the Motion for Production and Inspection of Documents and Written Interrogatories, and the October 9, 2006 quashal of the subpoena duces tecum.  The assailed June 26, 2006 and January 15, 2007 Omnibus Orders are AFFIRMED IN PART insofar as they denied the Motion to Set the Motion to Dismiss for hearing, and the Motion to Dismiss.

 

         SO ORDERED.[13][4]

 

 

        Petitioner moved for partial reconsideration of the CA Decision, but the same was denied in a Resolution dated October 23, 2007.

 

        Hence, this petition for review on certiorari where petitioner alleges that the CA erred (1) in ruling that the Complaint is not fatally defective despite the fact that only a Special Power of Attorney, and not a Board Resolution was attached to the Verification and Certification Against Forum Shopping; and (2) in depriving petitioner the right to present evidence on its Motion to Dismiss.

 

        On the other hand, respondents countered in their Comment that the petition should be dismissed outright because it was filed out of time; it did not include a material portion of the record below, i.e., respondents’ Comment to the petition before the CA; and the CA did not err in ruling that Mr. Kurebayashi was duly authorized by respondents to sign the verification/certification of non-forum shopping, because under the laws of Japan, under which laws respondents were incorporated, the board of directors of a Japanese corporation may appoint one or more Representative Directors who shall have the authority to perform all acts within court proceedings and out-of-court acts relating to the business of the corporation, and Mr. Kurebayashi was validly appointed by respondents’ Representative Directors to execute the Verification/Certification.

 

        The Court finds the petition unmeritorious.

 

        At the outset, respondents must be disabused of the belief that the petition was filed late. Petitioner originally had only until December 14, 2007 within which to file action.  However, the Court indeed suspended office transactions on December 14, 2007 due to the celebration of the Christmas party so the Court’s receiving section was closed. Petitioner, therefore, had until the next working day, or until December 17, 2007, within which to file the petition.  As long as the petition was filed on that last day of December 17, 2007, then it is considered to have been filed on time.  Records show that the petition was indeed filed on December 17, 2007.  Hence, it is of no moment that the Secretary’s Certificate attached to the Verification and Certification of Non-Forum Shopping was notarized on December 17, 2007, or later than December 14, 2007.

 

        Having resolved the question on the timeliness of the petition, we go on to discuss the main issues in this case.

 

        The Court does not see any reason to overturn the CA’s finding that there was no grave abuse of discretion on the part of the trial court in denying the Motion to Dismiss and the Motion to Set the Motion to Dismiss for Hearing.   The established definition of grave abuse of discretion was reiterated in Ligeralde v. Patalinghug[14][5] in this wise:

 

x   x   x   By grave abuse of discretion is meant such capricious or whimsical exercise of judgment as is equivalent to lack of jurisdiction.  The abuse of discretion must be patent and gross as to amount to an evasion of a positive duty or a virtual refusal to perform a duty enjoined by law, or to act at all in contemplation of law as where the power is exercised in an arbitrary and despotic manner by reason of passion and hostility.  In sum, for the extraordinary writ of certiorari to lie, there must be capricious, arbitrary or whimsical exercise of power.[15][6]  (Emphases supplied)

 

 

In this case, there is no showing of such capricious or whimsical exercise of judgment or arbitrary and despotic exercise of power committed by the trial court.  In fact, records reveal that both parties were given ample opportunity to be heard.  A hearing on the Motion to Dismiss was, in fact, held on    April 7, 2006.  Thereafter, both parties submitted their pleadings setting forth their claims, arguments and supporting evidence.  Petitioner points out that at the April 7, 2006 hearing, the parties were only allowed to file their pleadings, and no actual hearing, or presentation of evidence, was conducted.   It is an oft-repeated principle that where opportunity to be heard, either through oral arguments or pleadings, is accorded, there is no denial of due process.[16][7]  Moreover, the issues that petitioner seeks to tackle in the requested hearing on the motion to dismiss, i.e., novation, payment, extinguishment or abandonment of the obligation, are the meat of their defense and would require the presentation of voluminous evidence.  Such issues are better threshed out during trial proper.  Thus, the trial court was not amiss in ruling that petitioner already had the opportunity to be heard and there was no longer any need to set another hearing on the motion to dismiss.

 

 

        It also appears from the RTC’s Orders and the CA’s Decision that any and all evidence and argument advanced by both parties were seriously taken into consideration by said lower courts in arriving at their rulings.  Such being the case, there could be no grave abuse of discretion committed by the trial court.

 

        Lastly, on the issue of the Verification/Certification, the court has the power to give due course to the complaint even with the supposed defect, if special circumstances warrant.  Even assuming arguendo, that the form used to show Mr. Kurebayashi’s authority to execute the Verification and Certification Against Forum Shopping is defective, petitioner should bear in mind that this Court may relax the application of procedural rules for the greater interest of substantial justice.  Thus, in Cua, Jr. v. Tan,[17][8] this Court explained thus:

 

x  x  x Although the submission of a certificate against forum shopping is deemed obligatory, it is not jurisdictional. Hence, in this case in which such a certification was in fact submitted – only, it was defective – the  Court may still refuse to dismiss and may, instead, give due course to the Petition in light of attendant exceptional circumstances.
          x x x x                  

 

x x x [I]n the interest of substantial justice, the strict application of procedural technicalities should not hinder the speedy disposition of this case on the merits.   x  x  x

 

          x x x x                  

 

x  x  x  Indeed, where, as here, there is a strong showing that a grave miscarriage of justice would result from the strict application of the Rules, the Court will not hesitate to relax the same in the interest of substantial justice. It bears stressing that the rules of procedure are merely tools designed to facilitate the attainment of justice. They were conceived and promulgated to effectively aid the court in the dispensation of justice. Courts are not slaves to or robots of technical rules, shorn of judicial discretion. In rendering justice, courts have always been, as they ought to be, conscientiously guided by the norm that, on the balance, technicalities take a backseat against substantive rights, and not the other way around. Thus, if the application of the Rules would tend to frustrate rather than promote justice, it is always within the power of the Court to suspend the Rules, or except a particular case from its operation.[18][9]  (Emphasis supplied)   

 

 

        This case is one of those that deserves a more lenient application of procedural rules, considering that it affects one of the most important public utilities of our country.  In Agan, Jr. v. Philippine International Air Terminals Co., Inc.,[19][10] this Court has already stated that these cases involving the construction and operation of the country’s premier international airport, has attained transcendental importance.[20][11]  Therefore, the Court sees it fit to relax the rules in this case to arrive at a full settlement of the parties’ claims and avoid further delay in the administration of justice.

 

IN VIEW OF THE FOREGOING, the petition is DENIED.  The Court of Appeal’s Decision dated July 27, 2007, and the CA Resolutiondated October 23, 2007 in CA-G.R. SP No. 98166 are hereby AFFIRMED.

 

SO ORDERED.

 

                                                             DIOSDADO M. PERALTA

                                                                Associate Justice

 

 

WE CONCUR:

 

 

 

                          PRESBITERO J. VELASCO, JR.

    Associate Justice

         Chairperson

 

 

 JOSE CATRAL MENDOZA                BIENVENIDO L. REYES

            Associate Justice                                         Associate Justice

         ESTELA M. PERLAS-BERNABE

                                            Associate Justice

 

                                     ATTESTATION

 

 

I attest 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’s Division.

 

 

 

 

 

                                        PRESBITERO J. VELASCO, JR.

      Associate Justice

       Chairperson, Third Division

 

 

CERTIFICATION

 

 

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’s Division.

 

 

 

 

                                       

                                                        ANTONIO T. CARPIO

                                                                 Senior Associate Justice

                                                        (Per Section 12, R.A. 296,

                                       The Judiciary Act of 1948, as amended)

 

 

 

 


 


[1][6]           Id. at 320.

[2][5]           G.R. No. 168796, April 15, 2010, 618 SCRA 315.

[3][6]           Id. at 320.

[4][7]           Gomez v. Alcantara, G.R. No. 179556, February 13, 2009, 579 SCRA 472, 488; Trans Middle East (Phils.) Equities, Inc. v. Sandiganbayan, G.R. No. 129434, August 18, 2006, 499 SCRA 308, 317.

[5][7]           Gomez v. Alcantara, G.R. No. 179556, February 13, 2009, 579 SCRA 472, 488; Trans Middle East (Phils.) Equities, Inc. v. Sandiganbayan, G.R. No. 129434, August 18, 2006, 499 SCRA 308, 317.

[6][8]           G.R. Nos. 181455-56 & 182008, December 4, 2009, 607 SCRA 645

[7][9]           Id. at 686-687.

[8][10]          G.R. Nos. 155001, 155547 & 155661, May 5, 2003, 402 SCRA 612.

[9][11]          Id. at 646.

*               Designated Acting Member in lieu of Associate Justice Roberto A. Abad, per Special Order No. 1244 dated June 26, 2012.

[10][1]          Penned by Associate Justice Noel G. Tijam, with Associate Justices Martin S. Villarama, Jr. (now a member of this Court) and Sesinando E. Villon, concurring; rollo, pp. 37-72.

[11][2]          Id. at 73-76.

[12][3]          Id. at 38-47.

[13][4]          Id. at 71. (Emphases supplied.)

[14][5]          G.R. No. 168796, April 15, 2010, 618 SCRA 315.

[15][6]          Id. at 320.

[16][7]          Gomez v. Alcantara, G.R. No. 179556, February 13, 2009, 579 SCRA 472, 488; Trans Middle East (Phils.) Equities, Inc. v. Sandiganbayan, G.R. No. 129434, August 18, 2006, 499 SCRA 308, 317.

[17][8]          G.R. Nos. 181455-56 & 182008, December 4, 2009, 607 SCRA 645

[18][9]          Id. at 686-687.

[19][10]         G.R. Nos. 155001, 155547 & 155661, May 5, 2003, 402 SCRA 612.

[20][11]         Id. at 646.