public int'l law cases

7/31/2019 public int'l law cases

1/59

G.R. No. 151445 April 11, 2002

ARTHUR D. LIM and PAULINO R. ERSANDO, petitioners,vs.HONORABLE EXECUTIVE SECRETARY as alter ego of HER EXCELLENCEY GLORIA MACAPAGAL-ARROYO, and HONORABLE ANGELO REYES in his capacity as Secretary of NationalDefense, respondents.

----------------------------------------

SANLAKAS and PARTIDO NG MANGGAGAWA, petitioners-intervenors,vs.GLORIA MACAPAGA-ARROYO, ALBERTO ROMULO, ANGELO REYES, respondents.

DE LEON, JR., J.:

This case involves a petition for certiorari and prohibition as well as a petition-in-intervention, praying thatrespondents be restrained from proceeding with the so-called "Balikatan 02-1" and that after due notice andhearing, that judgment be rendered issuing a permanent writ of injunction and/or prohibition against thedeployment of U.S. troops in Basilan and Mindanao for being illegal and in violation of the Constitution.

The facts are as follows:

Beginning January of this year 2002, personnel from the armed forces of the United States of America startedarriving in Mindanao to take part, in conjunction with the Philippine military, in "Balikatan 02-1." These so-called"Balikatan" exercises are the largest combined training operations involving Filipino and American troops. Intheory, they are a simulation of joint military maneuvers pursuant to the Mutual Defense Treaty ,1a bilateraldefense agreement entered into by the Philippines and the United States in 1951.

Prior to the year 2002, the last "Balikatan" was held in 1995. This was due to the paucity of any formal

agreement relative to the treatment of United States personnel visiting the Philippines. In the meantime, therespective governments of the two countries agreed to hold joint exercises on a reduced scale. The lack ofconsensus was eventually cured when the two nations concluded the Visiting Forces Agreement (V FA) in1999.

The entry of American troops into Philippine soil is proximately rooted in the international anti-terrorismcampaign declared by President George W. Bush in reaction to the tragic events that occurred on September11, 2001. On that day, three (3) commercial aircrafts were hijacked, flown and smashed into the twin towers ofthe World Trade Center in New York City and the Pentagon building in Washington, D.C. by terrorists withalleged links to the al-Qaeda ("the Base"), a Muslim extremist organization headed by the infamous Osama binLaden. Of no comparable historical parallels, these acts caused billions of dollars worth of destruction ofproperty and incalculable loss of hundreds of lives.

On February 1, 2002, petitioners Arthur D. Lim and Paulino P. Ersando filed this petition for certiorari andprohibition, attacking the constitutionality of the joint exercise.2They were joined subsequently by SANLAKASand PARTIDO NG MANGGAGAWA, both party-Iist organizations, who filed a petition-in-intervention onFebruary 11, 2002.

Lim and Ersando filed suit in their capacities as citizens, lawyers and taxpayers. SANLAKAS and PARTIDO,on the other hand, aver that certain members of their organization are residents of Zamboanga and Sulu, andhence will be directly affected by the operations being conducted in Mindanao. They likewise pray for arelaxation on the rules relative to locus standiciting the unprecedented importance of the issue involved.

On February 71 2002 the Senate conducted a hearing on the "Balikatan" exercise wherein Vice-President

Teofisto T. Guingona, Jr., who is concurrently Secretary of Foreign. Affairs, presented the Draft Terms ofReference (TOR).3Five days later, he approved the TOR, which we quote hereunder:

I. POLICY LEVEL

1. The Exercise shall be consistent with the Philippine Constitution and all its activities shall be inconsonance with the laws of the land and the provisions of the RP-US Visiting Forces Agreement(VFA).
http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt1http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt1http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt1http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt2http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt2http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt2http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt3http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt3http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt3http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt3http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt2http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt1


2/59

2. The conduct of this training Exercise is in accordance with pertinent United Nations resolutionsagainst global terrorism as understood by the respective parties.

3. No permanent US basing and support facilities shall be established. Temporary structures such asthose for troop billeting, classroom instruction and messing may be set up for use by RP and USForces during the Exercise.

4. The Exercise shall be implemented jointly by RP and US Exercise Co-Directors under the authorityof the Chief of Staff, AFP. In no instance will US Forces operate independently during field trainingexercises (FTX). AFP and US Unit Commanders will retain command over their respective forces underthe overall authority of the Exercise Co-Directors. RP and US participants shall comply with operationalinstructions of the AFP during the FTX.

5. The exercise shall be conducted and completed within a period of not more than six months, with theprojected participation of 660 US personnel and 3,800 RP Forces. The Chief of Staff, AFP shall directthe Exercise Co-Directors to wind up and terminate the Exercise and other activities within the sixmonth Exercise period.

6. The Exercise is a mutual counter-terrorism advising, assisting and training Exercise relative toPhilippine efforts against the ASG, and will be conducted on the Island of Basilan. Further advising,assisting and training exercises shall be conducted in Malagutay and the Zamboanga area. Relatedactivities in Cebu will be for support of the Exercise.

7. Only 160 US Forces organized in 12-man Special Forces Teams shall be deployed with AFP field,commanders. The US teams shall remain at the Battalion Headquarters and, when approved,Company Tactical headquarters where they can observe and assess the performance of the AFPForces.

8. US exercise participants shall not engage in combat, without prejudice to their right of self-defense.

9. These terms of Reference are for purposes of this Exercise only and do not create additional legalobligations between the US Government and the Republic of the Philippines.

II. EXERCISE LEVEL

1. TRAINING

a. The Exercise shall involve the conduct of mutual military assisting, advising and training ofRP and US Forces with the primary objective of enhancing the operational capabilities of bothforces to combat terrorism.

b. At no time shall US Forces operate independently within RP territory.

c. Flight plans of all aircraft involved in the exercise will comply with the local air trafficregulations.

2. ADMINISTRATION & LOGISTICS

a. RP and US participants shall be given a country and area briefing at the start of the Exercise.This briefing shall acquaint US Forces on the culture and sensitivities of the Filipinos and theprovisions of the VF A. The briefing shall also promote the full cooperation on the part of the RPand US participants for the successful conduct of the Exercise.

b. RP and US participating forces may share, in accordance with their respective laws and

regulations, in the use of their resources, equipment and other assets. They will use theirrespective logistics channels.

c. Medical evaluation shall be jointly planned and executed utilizing RP and US assets andresources.

d. Legal liaison officers from each respective party shall be appointed by the Exercise Directors.


3/59

3. PUBLIC AFFAIRS

a. Combined RP-US Information Bureaus shall be established at the Exercise Directorate inZamboanga City and at GHQ, AFP in Camp Aguinaldo, Quezon City.

b. Local media relations will be the concern of the AFP and all public affairs guidelines shall bejointly developed by RP and US Forces.

c. Socio-Economic Assistance Projects shall be planned and executed jointly by RP and USForces in accordance with their respective laws and regulations, and in consultation withcommunity and local government officials.

Contemporaneously, Assistant Secretary for American Affairs Minerva Jean A. Falcon and UnitedStates Charge d' AffairesRobert Fitts signed the Agreed Minutes of the discussion between the Vice-Presidentand Assistant Secretary Kelly.4

Petitioners Lim and Ersando present the following arguments:

I

THE PHILIPPINES AND THE UNITED STATES SIGNED THE MUTUAL DEFENSE TREATY (MDT) in1951 TO PROVIDE MUTUAL MILITARY ASSIST ANCE IN ACCORDANCE WITH THE'CONSTITUTIONAL PROCESSE-S' OF EACH COUNTRY ONLY IN THE CASE OF AN ARMED

ATTACK BY AN EXTERNAL AGGRESSOR, MEANING A THIRD COUNTRY AGAINST ONE OFTHEM.

BY NO STRETCH OF THE IMAGINA TION CAN IT BE SAID THAT THE ABU SAYYAF BANDITS INBASILAN CONSTITUTE AN EXTERNAL ARMED FORCE THAT HAS SUBJECT THE PHILIPPINESTO AN ARMED EXTERNAL ATTACK TO WARRANT U.S. MILITARY ASSISTANCE UNDER THEMDT OF 1951.

II

NEITHER DOES THE VFA OF 1999 AUTHORIZE AMERICAN SOLDIERS TO ENGAGE IN COMBATOPERATIONS IN PHILIPPINE TERRITORY, NOT EVEN TO FIRE BACK "IF FIRED UPON".

Substantially the same points are advanced by petitioners SANLAKAS and PARTIDO.

In his Comment, the Solicitor General points to infirmities in the petitions regarding, inter alia, Lim andErsando's standing to file suit, the prematurity of the action, as well as the impropriety of availing of certioraritoascertain a question of fact. Anent their locus standi, the Solicitor General argues that first, they may not filesuit in their capacities as, taxpayers inasmuch as it has not been shown that "Balikatan 02-1 " involves the

exercise of Congress' taxing or spending powers. Second, their being lawyers does not invest them withsufficient personality to initiate the case, citing our ruling in Integrated Bar of the Philippines v.Zamora.5Third, Lim and Ersando have failed to demonstrate the requisite showing of direct personal injury.We agree.

It is also contended that the petitioners are indulging in speculation. The Solicitor General is of the view thatsince the Terms of Reference are clear as to the extent and duration of "Balikatan 02-1," the issues raised bypetitioners are premature, as they are based only on a fear offutureviolation of the Terms of Reference. Evenpetitioners' resort to a special civil action for certiorari is assailed on the ground that the writ may only issue onthe basis of established facts.

Apart from these threshold issues, the Solicitor General claims that there is actually no question of

constitutionality involved. The true object of the instant suit, it is said, is to obtain an interpretation of the V FA.The Solicitor General asks that we accord due deference to the executive determination that "Balikatan 02-1"is covered by the VFA, considering the President's monopoly in the field of foreign relations and her role ascommander-in-chief of the Philippine armed forces.

Given the primordial importance of the issue involved, it will suffice to reiterate our view on this point in arelated case:
http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt4http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt4http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt4http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt5http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt5http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt5http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt5http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt4


4/59

Notwithstanding, in view of the paramount importance and the constitutional significance of theissues raised in the petitions, this Court, in the exercise of its sound discretion, brushes asidethe procedural barrier and takes cognizance of the petitions, as we have done in the earlyEmergency Powers Cases, where we had occasion to rule:

'x x x ordinary citizens and taxpayers were allowed to question the constitutionality of severalexecutive orders issued by President Quirino although they were involving only an indirect and

general interest shared in common with the public. The Court dismissed the objection that theywere not proper parties and ruled that 'transcendental importance to the public of thesecases demands that they be settled promptly and definitely, brushing aside, if we must,technicalities of procedure.' We have since then applied the exception in many other cases.[citation omitted]

This principle was reiterated in the subsequent cases ofGonzales vs. COMELEC, Daza vs. Singson,and Basco vs. Phil, Amusement and Gaming Corporation, where we emphatically held:

Considering however the importance to the public of the case at bar, and in keeping with theCourt's duty, under the 1987 Constitution, to determine whether or not the other branches of thegovernment have kept themselves within the limits of the Constitution and the laws that they

have not abused the discretion given to them, the Court has brushed aside technicalities ofprocedure and has taken cognizance of this petition. xxx'

Again, in the more recent case ofKilosbayan vs. Guingona, Jr., this Court ruled that in cases oftranscendental importance, the Court may relax the standing requirements and allow a suit toprosper even where there is no direct injury to the party claiming the right of judicial review .

Although courts generally avoid having to decide a constitutional question based on the doctrine ofseparation of powers, which enjoins upon the department of the government a becoming respect foreach other's act, this Court nevertheless resolves to take cognizance of the instant petition.6

Hence, we treat with similar dispatch the general objection to the supposed prematurity of the action. At anyrate, petitioners' concerns on the lack of any specific regulation on the latitude of activity US personnel mayundertake and the duration of their stay has been addressed in the Terms of Reference.

The holding of "Balikatan 02-1" must be studied in the framework of the treaty antecedents to which thePhilippines bound itself. The first of these is the Mutual Defense Treaty (MDT, for brevity). The MDT has beendescribed as the "core" of the defense relationship between the Philippines and its traditional ally, the UnitedStates. Its aim is to enhance the strategic and technological capabilities of our armed forces through jointtraining with its American counterparts; the "Balikatan" is the largest such training exercise directly supportingthe MDT's objectives. It is this treaty to which the V FA adverts and the obligations thereunder which it seeks toreaffirm.

The lapse of the US-Philippine Bases Agreement in 1992 and the decision not to renew it created a vacuum inUS-Philippine defense relations, that is, until it was replaced by the Visiting Forces Agreement. It should berecalled that on October 10, 2000, by a vote of eleven to three, this Court upheld the validity of the VFA.7TheV FA provides the "regulatory mechanism" by which "United States military and civilian personnel [may visit]temporarily in the Philippines in connection with activities approved by the Philippine Government." It containsprovisions relative to entry and departure of American personnel, driving and vehicle registration, criminal

jurisdiction, claims, importation and exportation, movement of vessels and aircraft, as well as the duration ofthe agreement and its termination. It is the VFA which gives continued relevance to the MDT despite thepassage of years. Its primary goal is to facilitate the promotion of optimal cooperation between American andPhilippine military forces in the event of an attack by a common foe.

The first question that should be addressed is whether "Balikatan 02-1" is covered by the Visiting Forces

Agreement. To resolve this, it is necessary to refer to the V FA itself: Not much help can be had therefrom,unfortunately, since the terminology employed is itself the source of the problem. The VFA permits UnitedStates personnel to engage, on an impermanent basis, in "activities," the exact meaning of which was leftundefined. The expression is ambiguous, permitting a wide scope of undertakings subject only to the approvalof the Philippine government.8The sole encumbrance placed on its definition is couched in the negative, in thatUnited States personnel must "abstain from any activity inconsistent with the spiritofthis agreement, and inparticular, from any political activity."9All other activities, in other words, are fair game.
http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt6http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt6http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt6http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt7http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt7http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt7http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt8http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt8http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt8http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt9http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt9http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt9http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt9http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt8http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt7http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt6


5/59

We are not left completely unaided, however. The Vienna Convention on the Law of Treaties, which containsprovisos governing interpretations of international agreements, state:

SECTION 3. INTERPRETATION OF TREATIES

Article 31

General rule of interpretation

1. A treaty shall be interpreted in good faith ill accordance with the ordinary meaning to be given to thetenus of the treaty in their context and in the light of its object and purpose.

2. The context for the purpose of the interpretation of a treaty shall comprise, in addition to the text,including its preamble and annexes:

(a) any agreement relating to the treaty which was made between all the parties in connexionwith the conclusion of the treaty;

(b) any instrument which was made by one or more parties in connexion with the conclusion ofthe treaty and accepted by the other parties as an instrument related to the party .

3. There shall be taken into account, together with the context:

(a) any subsequent agreement between the parties regarding the interpretation of the treaty orthe application of its provisions;

(b) any subsequent practice in the application of the treaty which establishes the agreement ofthe parties regarding its interpretation;

(c) any relevant rules of international law applicable in the relations between the parties.

4. A special meaning shall be given to a term if it is established that the parties so intended.

Article32

Supplementary means of interpretation

Recourse may be had to supplementary means of interpretation, including the preparatory work of thetreaty and the circumstances of its conclusion, in order to confirm the meaning resulting from theapplication of article 31, or to determine the meaning when the interpretation according to article 31 :

(a) leaves the meaning ambiguous or obscure; or

(b) leads to a result which is manifestly absurd unreasonable.

It is clear from the foregoing that the cardinal rule of interpretation must involve an examination of the text,which is presumed to verbalize the parties' intentions. The Convention likewise dictates what may be used asaids to deduce the meaning of terms, which it refers to as the context of the treaty, as well as other elementsmay be taken into account alongside the aforesaid context. As explained by a writer on the Convention ,

[t]he Commission's proposals (which were adopted virtually without change by the conference and arenow reflected in Articles 31 and 32 of the Convention) were clearly based on the view that the text of atreaty must be presumed to be the authentic expression of the intentions of the parties; the Commission

accordingly came down firmly in favour of the view that 'the starting point of interpretation is theelucidation of the meaning of the text, not an investigation ab initiointo the intentions of the parties'.This is not to say that the travauxpreparatoiresof a treaty , or the circumstances of its conclusion, arerelegated to a subordinate, and wholly ineffective, role. As Professor Briggs points out, no rigidtemporal prohibition on resort to travaux preparatoiresof a treaty was intended by the use of the phrase'supplementary means of interpretation' in what is now Article 32 of the Vienna Convention. Thedistinction between the general rule of interpretation and the supplementary means of interpretation isintended rather to ensure that the supplementary means do not constitute an alternative, autonomousmethod of interpretation divorced from the general rule.10
http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt10http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt10http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt10http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt10


6/59

The Terms of Reference rightly fall within the context of the VFA.

After studied reflection, it appeared farfetched that the ambiguity surrounding the meaning of the word.'activities" arose from accident. In our view, it was deliberately made that way to give both parties a certainleeway in negotiation. In this manner, visiting US forces may sojourn in Philippine territory for purposes otherthan military. As conceived, the joint exercises may include training on new techniques of patrol andsurveillance to protect the nation's marine resources, sea search-and-rescue operations to assist vessels in

distress, disaster relief operations, civic action projects such as the building of school houses, medical andhumanitarian missions, and the like.

Under these auspices, the VFA gives legitimacy to the current Balikatan exercises. It is only logical to assumethat .'Balikatan 02-1," a "mutual anti- terrorism advising, assisting and training exercise," falls under theumbrella of sanctioned or allowable activities in the context of the agreement. Both the history and intent of theMutual Defense Treaty and the V FA support the conclusion that combat-relatedactivities -as opposedto combatitself -such as the one subject of the instant petition, are indeed authorized.

That is not the end of the matter, though. Granted that "Balikatan 02-1" is permitted under the terms of theVFA, what may US forces legitimately do in furtherance of their aim to provide advice, assistance and trainingin the global effort against terrorism? Differently phrased, may American troops actually engage in combat in

Philippine territory? The Terms of Reference are explicit enough. Paragraph 8 of section I stipulates that USexercise participants may notengage in combat "except in self-defense."We wryly note that this sentimentis admirable in the abstract but difficult in implementation. The target of "Balikatan 02-1 I" the Abu Sayyaf,cannot reasonably be expected to sit idly while the battle is brought to their very doorstep. They cannot beexpected to pick and choose their targets for they will not have the luxury of doing so. We state this point if onlyto signify our awareness that the parties straddle a fine line, observing the honored legal maxim "Nemo potestfacere per alium quod non potest facere per directum."11The indirect violation is actually petitioners' worry, thatin reality, "Balikatan 02-1 " is actually a war principally conducted by the United States government, and thatthe provision on self-defense serves only as camouflage to conceal the true nature of the exercise. A clearpronouncement on this matter thereby becomes crucial.

In our considered opinion, neither the MDT nor the V FA allow foreign troops to engage in an offensive war on

Philippine territory. We bear in mind the salutary proscription stated in the Charter of the United Nations, to wit:

Article 2

The Organization and its Members, in pursuit of the Purposes stated in Article 1, shall act inaccordance with the following Principles.

xxx xxx xxx xxx

4. All Members shall refrain in their international relations from the threat or use of force against theterritorial integrity or political independence of any state, or in any other manner inconsistent with the

Purposes of the United Nations.

xxx xxx xxx xxx

In the same manner, both the Mutual Defense Treaty and the Visiting Forces Agreement, as in all othertreaties and international agreements to which the Philippines is a party, must be read in the context of the1987 Constitution. In particular, the Mutual Defense Treaty was concluded way before the present Charter,though it nevertheless remains in effect as a valid source of international obligation. The present Constitutioncontains key provisions useful in determining the extent to which foreign military troops are allowed inPhilippine territory. Thus, in the Declaration of Principles and State Policies, it is provided that:

xxx xxx xxx xxx

SEC. 2. The Philippines renounces war as an instrument of national policy, adopts the generallyaccepted principles of international law as part of the law of the land and adheres to the policy ofpeace, equality, justice, freedom, cooperation, and amity with all nations.

xxx xxx xxx xxx


7/59

SEC. 7. The State shall pursue an independent foreign policy. In its relations with other states theparamount consideration shall be national sovereignty, territorial integrity, national interest, and theright to self- determination.

SEC. 8. The Philippines, consistent with the national interest, adopts and pursues a policy of freedomfrom nuclear weapons in the country.

xxx xxx xxx xxx

The Constitution also regulates the foreign relations powers of the Chief Executive when it provides that "[n]otreaty or international agreement shall be valid and effective unless concurred in by at least two-thirds of all themembers of the Senate."12Even more pointedly, the Transitory Provisions state:

Sec. 25. After the expiration in 1991 of the Agreement between the Republic of the Philippines and theUnited States of America concerning Military Bases, foreign military bases, troops or facilities shall notbe allowed in the Philippines except under a treaty duly concurred in by the Senate and, when theCongress so requires, ratified by a majority of the votes cast by the people in a national referendumheld for that purpose, and recognized as a treaty by the other contracting state.

The aforequoted provisions betray a marked antipathy towards foreign military presence in the country, or offoreign influence in general. Hence, foreign troops are allowed entry into the Philippines only by way of directexception. Conflict arises then between the fundamental law and our obligations arising from internationalagreements.

A rather recent formulation of the relation of international law vis-a-vismunicipal law was expressed in PhilipMorris, Inc. v. Courtof Appeals,13to wit:

xxx Withal, the fact that international law has been made part of the law of the land does not by anymeans imply the primacy of international law over national law in the municipal sphere. Under thedoctrine of incorporation as applied in most countries, rules of international law are given a standing

equal, not superior, to national legislation.

This is not exactly helpful in solving the problem at hand since in trying to find a middle ground, it favors neitherone law nor the other, which only leaves the hapless seeker with an unsolved dilemma. Other more traditionalapproaches may offer valuable insights.

From the perspective of public international law, a treaty is favored over municipal law pursuant to the principleofpacta sunt servanda. Hence, "[e]very treaty in force is binding upon the parties to it and must be performedby them in good faith."14Further, a party to a treaty is not allowed to "invoke the provisions of its internal law as

justification for its failure to perform a treaty."15

Our Constitution espouses the opposing view. Witness our jurisdiction as I stated in section 5 of Article VIII:

The Supreme Court shall have the following powers:

xxx xxx xxx xxx

(2) Review, revise, reverse, modify, or affirm on appeal orcertiorari, as the law or the Rules of Courtmay provide, final judgments and order of lower courts in:

(A) All cases in which the constitutionality or validity of any treaty, international or executiveagreement, law, presidentialdecree, proclamation, order, instruction, ordinance, or regulation is inquestion.

xxx xxx xxx xxx

In Ichong v. Hernandez,16we ruled that the provisions of a treaty are always subject to qualification oramendment by a subsequent law, or that it is subject to the police power of the State. In Gonzales v.Hechanova,17

xxx As regards the question whether an international agreement may be invalidated by our courts,suffice it to say that the Constitution of the Philippines has clearly settled it in the affirmative, byproviding, in Section 2 of Article VIII thereof, that the Supreme Court may not be deprived "of its
http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt12http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt12http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt12http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt13http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt13http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt13http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt14http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt14http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt14http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt15http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt15http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt15http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt16http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt16http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt16http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt17http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt17http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt17http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt17http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt16http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt15http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt14http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt13http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt12


8/59

jurisdiction to review, revise, reverse, modify, or affirm on appeal, certiorari, or writ of error as the law orthe rules of court may provide, final judgments and decrees of inferior courts in -( I) All cases in whichthe constitutionalityorvalidityof anytreaty, law, ordinance, or executive order or regulation is inquestion." In other words, our Constitution authorizes the nullification of a treaty, not only when itconflicts with the fundamental law, but, also, when it runs counter to an act of Congress.

The foregoing premises leave us no doubt that US forces are prohibited / from engaging in an offensive war on

Philippine territory.

Yet a nagging question remains: are American troops actively engaged in combat alongside Filipino soldiersunder the guise of an alleged training and assistance exercise? Contrary to what petitioners would have us do,we cannot take judicial notice of the events transpiring down south,18 as reported from the saturation coverageof the media. As a rule, we do not take cognizance of newspaper or electronic reports per se, not because ofany issue as to their truth, accuracy, or impartiality, but for the simple reason that facts must be established inaccordance with the rules of evidence. As a result, we cannot accept, in the absence of concrete proof,petitioners' allegation that the Arroyo government is engaged in "doublespeak" in trying to pass off as a meretraining exercise an offensive effort by foreign troops on native soil. The petitions invite us to speculateon whatis really happening in Mindanao, to issue I make factual findings on matters well beyond ourimmediate perception, and this we are understandably loath to do.

It is all too apparent that the determination thereof involves basically a question of fact. On this point, we mustconcur with the Solicitor General that the present subject matter is not a fit topic for a special civil actionforcertiorari. We have held in too many instances that questions of fact are not entertained in such a remedy.The sole object of the writ is to correct errors of jurisdiction or grave abuse of discretion: The phrase "graveabuse of discretion" has a precise meaning in law, denoting abuse of discretion "too patent and gross as toamount to an evasion of a positive duty, or a virtual refusal to perform the duty enjoined or act in contemplationof law, or where the power is exercised in an arbitrary and despotic manner by reason of passion and personalhostility."19

In this connection, it will not be amiss to add that the Supreme Court is not a trier of facts.20

Under the expanded concept of judicial power under the Constitution, courts are charged with the duty "todetermine whether or not there has been a grave abuse of discretion amounting to lack or excess of

jurisdiction on the part of any branch or instrumentality of the government."21From the facts obtaining, we findthat the holding of "Balikatan 02-1" joint military exercise has not intruded into that penumbra of error thatwould otherwise call for correction on our part. In other words, respondents in the case at bar have notcommitted grave abuse of discretion amounting to lack or excess of jurisdiction.

WHEREFORE, the petition and the petition-in-intervention are hereby DISMISSED without prejudice to thefiling of a new petition sufficient in form and substance in the proper Regional Trial Court.

SO ORDERED.
http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt19http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt19http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt19http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt20http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt20http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt20http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt21http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt21http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt21http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt21http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt20http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt19


9/59

DISSENTING OPINION

KAPUNAN, J.:

On September 11, 2001, terrorists, with the use of hijacked commercial airplanes, attacked the World TradeCenter Building in New York City and the Pentagon Building in Washington D.C., U.S.A., killing thousands ofpeople.

Following the attacks, the United States declared a "global war" against terrorism and started to bomb andattack Afghanistan to topple the Taliban regime and capture Osama bin Laden, the suspected mastermind ofthe September 11, 2001 attacks. With the Northern Alliance mainly providing the ground forces, the Talibanregime fell in a few months, without Osama bin Laden having been captured. He is believed either to be still in

Afghanistan or has crossed the border into Pakistan.

In line with President Gloria Macapagal-Arroyo's pledge to render all-out aid to the US in its campaign against"global terrorism," an arrangement for a. joint military exercises known as "RP-US Balikatan02-1 Exercises"was entered into between the US and Philippine authorities, allegedly within the ambit of the Visiting Forces

Agreement (V FA) with the main objective of enhancing the operational capabilities of the countries incombating terrorism. The US government has identified the Abu Sayyaf Group (ASG) in the Philippines as aterrorist group forming part of a "terrorist underground" linked to the al-Qaeda network of Osama bin Laden.

Beginning January 21, 2002, American troops started arriving in Mindanao as part of the total contingent forceof 660 soldiers, 160 to be stationed in Basilan, 200 to 250 in Zamboanga, and 250 in the Air Force base inMactan, Cebu.

The salient features of the joint military exercises as embodied in the Terms of Reference (TOR) aresummarized as follows:

(a) The exercise shall be consistent with the Constitution and other Philippine laws, particularly the RP-US Visiting Forces Agreement;

(b) No permanent US bases and support facilities will be established;

(c) The exercise shall be implemented jointly by RP and US Exercise Co-Directors under the directionof the Chief of Staff of the AFP and in no instance will US Forces operate independently during fieldtraining exercises;

(d) It shall be conducted and completed within a period of not more than six months, with the projectedparticipation of 660 US personnel and 3,800 RP forces, and the Chief of Staff of the AFP shall directthe Exercise Co-Directors to wind up the Exercise and other activities and the withdrawal of US forceswithin the six-month period;

(e) The exercise "is a mutual counter-terrorism advising, assisting and training exercise" relative toPhilippine efforts against the Abu Sayyaf Group and will be conducted on the Island of Basilan. Furtheradvising, assisting and training exercises shall be conducted in Malagutay and the Zamboanga area.Related activities in Cebu will also be conducted in support of the Exercise;

(f) Only 160 US troops organized in 12-man Special Forces Teams shall be deployed in Basilan, withthe US Team remaining at the Company Tactical Headquarters where they can observe and assessthe performance of the troops; and

(g) US exercise participants shall not engage in combat, without prejudice to their right to self-defense.

Petitioners now seek the issuance of a writ of prohibition/injunction to prevent US troops from participating in

areas of armed conflict on the ground that such is in gross violation of the Constitution. They argue that:

I

THE PHILIPPINES AND THE UNITED STATES SIGNED THE MUTUAL DEFENSE TREATY (MDT) IN1951 TO PROVIDE MUTUAL MILITARY ASSISTANCE IN ACCORDANCE WITH THECONSTITUTIONAL PROCESSES" OF EACH COUNTRY ONLY IN THE CASE OF AN ARMED

ATTACK BY AN EXTERNAL AGGRESSOR, MEANING A THIRD COUNTRY AGAINST ONE OFTHEM.


10/59

BY NO STRETCH OF THE IMAGINATION CAN IT BE SAID THAT THE ABU SAYYAF BANDITS INBASILAN CONSTITUTE AN EXTERNAL ARMED FORCE THAT HAS SUBJECTED THEPHILIPPINES TO AN ARMED EXTERNAL ATTACK TO WARRANT US MILITARY ASSISTANCEUNDER THE MDT OF 1951.

II

NEITHER DOES THE VFA OF 1999 AUTHORIZED AMERICAN SOLDIERS TO ENGAGE INCOMBAT OPERATIONS IN PHILIPPINE TERRITORY, NOT EVEN TO FIRE BACK "IF FIRED UPON."

Sanlakas and Partido ng Manggagawa as intervenors seek the same relief as petitioners, stressing that theConstitution prohibits the presence of foreign military troops or facilities in the country, except under a treatyduly concurred in by the Senate and recognized as a treaty by the other state.

The petition is impressed with merit.

There is no treaty allowing

US troops to engage in combat.

The Constitution prohibits foreign military bases, troops or facilities unless a treaty permits the same. Section25, Article XVIII of the Constitution provides:

After the expiration in 1991 of the Agreement between the Republic of the Philippines and the UnitedStates of America concerning Military Bases, foreign military bases, troops, or facilities shall not beallowed in the Philippines except under a treaty duly concurred in by the Senate and, when theCongress so requires, ratified by a majority of the votes cast by the people in a national referendumheld for that purpose, and recognized as a treaty by the other contracting State.

There is no treaty allowing foreign military troops to engage in combat with internal elements.

The Mutual Defense Treaty (MDT) between the Republic of the Philippines and the United States of Americadoes not authorize US military troops to engage the ASG in combat. The MDT contemplates only an"external armed attack." Article III of the treaty cannot be more explicit:

The Parties, through their Foreign Ministers or their deputies, will consult together from time to timeregarding the implementation of this treaty and whenever in the opinion of either of them the territorialintegrity, political independence or security of either of the Parties is threatened by external armedattack in the Pacific. [Emphasis supplied.]

Supporting this conclusion is the third paragraph of the MDT preamble where the parties express their desire

to declare publicly and formally their sense of unity and their common determination to defend

themselves against external armed attack, so that no potential aggressor could be under the illusionthat either of them stands alone in the Pacific area. [Emphasis supplied.]

There is no evidence thatthe ASG is connected with"global terrorism."

There is no empirical basis for the allegation that the "terrorism" which the ASG is accused of constitutes an"external armed attack." The ASG has committed mostly crimes of kidnapping for ransom and murder -common crimes that are punishable under the penal code but which, by themselves, hardly constitute"terrorism."

Parenthetically, there is lack of agreement as to the precise definition of terrorism. Indeed, one man's terroristmay be another man's freedom fighter. The divergent interests of States have caused contradicting definitionsand conflicting perceptions of what constitutes "terrorist acts" that make it difficult for the United Nations toreach a decision on the definition of terrorism. Because of this "definitional predicament," the power ofdefinition is easily exercised by a superpower which, by reason of its unchallenged hegemony, could drawlists of what it considers terrorist organizations or states sponsoring terrorism based on criteria determined bythe hegemon's own strategic interests.1


11/59

In any case, ties between the ASG and so-called international "terrorist" organizations have not beenestablished.2Even assuming that such ties do exist, it does not necessarily make the "attacks" by the ASG"external" as to fall within the ambit of the MDT.

Balikatan exercises arenot covered by VFA as

US troops are not

allowed to engage in combat.

Neither is the present situation covered by the so-called Visiting Forces Agreement (VFA). The V FA wasconcluded after the removal of the US military bases, troops and facilities in the aftermath of the termination ofthe treaty allowing the presence of American military bases in the Philippines. The VF A is nothing more thanwhat its formal name suggests: an "Agreement between the Government of the Republic of the Philippines andthe Government of the United States of America regarding the Treatment of United States Armed ForcesVisiting the Philippines. "The last paragraph of the V FA preamble also "recogniz[es] the desirability ofdefining the treatmentof United States personnel visiting the Republic of the Philippines."

The VFA was entered into to enable American troops to enter the country again after the removal of theAmerican military bases so they can participate in military exercises under the auspices of the Mutual Defense

Treaty. It provided the legal framework under which American soldiers will be treated while they remain in thecountry.

The military exercises contemplated in the VFA are those in accordance with the National Defense Plan (NDP)of the Philippines. The NDP was previously approved and adopted by the Mutual Defense Board, jointlychaired by the Chief of Staff of the Armed Forces of the Philippines and the Commander in the Pacific of theUnited States Armed Forces.

The NDP is directed against potential foreign aggressors, not designed to deal with internal disorders. Thiswas what the Senate understood when it ratified the VFA in Senate Resolution No. 18, which reads:

The VFA shall serve as the legal mechanism to promote defense cooperation between the twocountries, enhancing the preparedness of the Armed Forces of the Philippines against external threats;and enabling the Philippines to bolster the stability of the Pacific Area in a shared effort with itsneighbor states.

The VFA's ambiguous reference to "activities"3is not a loophole that legitimizes the presence of US troops inBasilan. In the treaty's preamble, the parties "reaffirm their obligations under the Mutual Defense Treaty of

August 30, 1951." As the preamble comprises part of a treaty's context for the purpose of interpretation, theVFA must be read in light of the provisions of the MDT. As stated earlier, the MDT contemplates only anexternal armed attack; consequently, the "activities" referred to in the V FA cannot thus be interpreted toinclude armed confrontation with or suppression of the ASG members who appear to be mere local bandits,mainly engaged in kidnapping for ransom and murder -even arson, extortion and illegal possession of firearms,all of which are common offenses under our criminal laws. These activities involve purely police matters anddomestic law and order problems; they are hardly "external" attacks within the contemplation of the MDT andthe V FA. To construe the vagueness of the term "activities" in the V FA as authorizing American troops toconfront the ASG in armed conflict would, therefore, contravene both spirit and letter of the MDT.

Respondents maintain that the American troops are not here to fight the ASG but merely to engage in "trainingexercises." To allay fears that the American troops are here to engage the ASG in combat, the TOR professesthat the present exercise "is a mutual counter-terrorism advising, assisting and training Exercise relative toPhilippine efforts against the ASG, and will be conducted on the Island of Basilan." The TOR further providesthat the "exercise" shall involve the conduct of "mutual military assisting, advising and training of RP and USForces with the primary objective of enhancing the operational capabilities of both forces to combat terrorism."

These avowals of assistance, advice, and training, however, fly in the face of the presence of US troops in theheart of the ASG's stronghold. Such presence is an act of provocation that makes an armed confrontationbetween US soldiers and ASG members inevitable.

The US troops in Basilan have been described as being "on a slippery slope between training andfighting."Their very presence makes them a target for terrorist and for the local Moslem populace, which hasbeen bitterly anti-American since colonial times. Though they are called advisers, the Americans win be goingon risky missions deep into the jungle. A former Green Beret who is an analyst of Washington's Center for
http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt2http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt2http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt3http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt3http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt3http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt3http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt2


12/59

Strategies and Budgetary Assessments notes that "when troops go out on patrol, they come as close as theycan to direct combat."4

"Advising" or "training" Filipino soldiers hardly describes the involvement of US troops (unaccompanied byFilipino counterparts) on board combat helicopters which land on the battlegrounds to evacuate Filipinosoldiers wounded while fighting the ASG. For example, on April 5,2002, US troops on board a Pave Hawkhelicopter flew to the scene of a night battle on Basilan Island to evacuate a wounded Filipino soldier. This was

reportedly the third time in recent weeks that chopper-borne US forces had evacuated Filipino soldiers fightingthe ASG.5

Whatever euphemisms may be conjured to characterize American involvement, the RP-US Balikatan02-1 Exercises are aimed at seeking out the ASG and exterminating it.

The prohibition contained in the TOR against US exercise participants from engaging in combat but "withoutprejudice to their right to self- defense" provides little consolation. Combat muddles the distinction betweenaggression and self-defense. US troops can always say they did not fire first and no one would dare sayotherwise. The ASG has been so demonized that no one cares how it is exorcised. Significantly, the TOR doesnot define the parameters of "self-defense." Militarily, a pre-emptive strike could be interpreted as an act of self-defense.

What I fear most is that the country would be dragged into a more devastating and protracted conflict as aresult of the continued presence of US military troops in Basilan. A single ASG sniper's bullet felling an

American soldier could be used as an excuse for massive retaliation by US ground and air forces to attack andbomb out every suspected ASG lair, all in the name of "self -defense.

Apprehensions over possible catastrophic consequence of US military involvement in our country are notwithout historical basis.

The US experience in Vietnam, for example, began as an expression of support for the establishment of SouthVietnam under Bao Dai's leadership in 1949 to. counteract the support given by communist China and theSoviet Union to North Vietnam. In 1950, the US began providing military assistance in fighting North Vietnamby sending military advisors as well as US tanks, planes, artillery and other supplies. The US became moreinvolved in the Vietnam conflict when in 1961, it sent the first 400 Green Beret "Special Advisors" to SouthVietnam to train the latter's soldiers in methods of counter-insurgency against the Viet Cong guerillas. Itclarified that the American soldiers were not in Vietnam to engage in combat .6

However, due to the increased success of the Viet Cong guerillas, assisted by the Northern Vietnamese Army,the US eventually began to run covert operations using South Vietnamese commandos in speed boats toharass radar sites along the coastline of North Vietnam. In 1964, after an alleged torpedo attack by NorthVietnam of the American destroyers USS. Maddox and USS. C. Turner Joy in the Gulf of Tonkin, the USdecided to retaliate by conducting bombing raids in North Vietnam.7

The Vietnam War resulted in the death of two million Vietnamese and injuries to three million others. Twelvemillion Vietnamese became refugees and thousands of children became orphaned.8Millions of acres ofVietnam's forests were defoliated by a herbicide called Agent Orange, dropped from the air. Millions of minesand unexploded bombs and artillery shells are still scattered in the countryside, posing constant danger to lifeand limb.

US militarv presence is

essentially indefinite

and open-ended.

Already, there are indications that the US intends to reestablish a more enduring presence in thecountry. Defense Secretary Angelo Reyes was quoted to have declared on March 20, 2002 that 2,665 US

soldiers will take part in the RP-US Balikatan02-2 starting next month in Central Luzon and that 10 moremilitary exercises will be held this year.9How many more war exercises are needed for "training and advising"Filipino soldiers? What conditions must be satisfied for the United States to consider the "war againstterrorism" in Mindanao terminated? The endless frequency and successive repetition of the war exercisescovering the two largest islands of the country amount, in a real sense, to the permanent presence of foreignmilitary troops heresansa treaty in blatant violation of the constitutional proscription.

US President George w. Bush in his January 30, 2002 speech declared:
http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt4http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt4http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt4http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt5http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt5http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt5http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt6http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt6http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt6http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt7http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt7http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt7http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt8http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt8http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt8http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt9http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt9http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt9http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt9http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt8http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt7http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt6http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt5http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt4


13/59

The men and women of our armed-forces have delivered a message to every enemy of the UnitedStates. You shall not escape the justice of this nation. x x x.

Should any country be timid in the face of terror, if they do not act, America will.

President Arroyo, in a speech at the Regis Hotel in New York City on February 1, 2002, pledged her "fullsupport" to US President George W. Bush in the fight against international terrorism. She declared that "the

Philippines will continue to be a partner of the United States in the war to end terrorism" and that "(t)he anti-terrorism partnership will continue after the whole world is secure against the terrorist."10

In his speech on the White House Laws on March 11, 2002, President Bush exhorted:

America encourages and expects governments everywhere to help remove the terrorist parasites thatthreaten their own countries and the peace of the world. x x x. We are helping right now in thePhilippines, where terrorist with links to Al Qaeda are trying to seize the southern part of the country toestablish a military regime.

They are oppressing local peoples, and have kidnapped both American and Filipino citizens."11

The Philippine Daily Inquirerin its March 17, 2002 issue carried the following report:

The United States wants to bring in more troops for the controversial Balikatan 02-1 training exerciseaimed at wiping out the Abu Sayyaf bandits in Basilan.

The US military last week began calling the war-games "Operation Enduring Freedom-Philippines,"giving credence to claims that the country has become, after Afghanistan, the second front of the US-led global war on terrorism.

Today'sissue of April 1, 2002 reporting as its source New York News Service, quoted a senior Bushadministration official as saying:

We are looking at prolonged training. x x x. It takes more to build up capabilities than saying here aresome night vision goggles.

The declarations of the two Presidents on the war against terrorism and their avowal to secure the worldagainst the terrorists would ineluctably suggest a long-drawn conflict without a foreseeable end. Worse, it isnot unlikely that this war could expand and escalate to include as protagonists the Moro IslamicLiberation Front and the Moro National Liberation Front and -not improbably -the National People'sArmy, all lumped-up as "terrorists" in a unilateral characterization.

No less than US Deputy Defense Secretary Paul Wolfowitz declared that the proposed $48-billion increase tothe US defense budget for 2003 is intended to sustain the war on terrorism,12 including that fought in this

country, thus: .

Deputy Defense Secretary Paul Wolfowitz on Wednesday said the Pentagon needs a big budgetincrease next year on terrorism, which has expanded from Afghanistan to the Philippines and nowappears to be moving to Georgia.13

The Court can take judicial notice of the foregoing pronouncements as they are of public knowledge,14havingbeen widely circulated in all channels of the media. Neither have they been denied.

US military intervention

is not the solution to theMindanao problem.

Assuming that the ASG is a terrorist organization, U.S. military intervention is not the solution to achievepeace. The annihilation of the rebel bandits would be a futile quest so long at the root causes of theircriminality are not addressed. A study15 by the United Nations Secretariat, however, acknowledges thatinternational terrorism springs from "misery, frustration, grievance and 'despair," elements which, manybelieve, are present in Basilan. Two veteran Philippine journalists have described the province as Mindanao's"war laboratory," where lawlessness, government neglect, religious strife, poverty, and power struggle arerampant.16
http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt10http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt10http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt10http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt11http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt11http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt11http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt13http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt13http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt13http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt14http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt14http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt14http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt16http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt16http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt16http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt16http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt14http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt13http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt11http://www.lawphil.net/judjuris/juri2002/apr2002/gr_151445_2002.html#fnt10


14/59

If indeed acts of terrorism are cries of desperation, if terrorism is but a symptom of the greater maladies of"misery, frustration, grievance and despair," then it cannot be remedied alone by ASG's physical extermination,which appears to be the object of President Bush and President Macapagal- Arroyo's joint campaign againstglobal terrorism." Admittedly, the State has the right to use force as a means of self-preservation. But perhapswe should all consider that a military solution is but a first-aid measure, not the prescription to these diseases.It has been opined that:

The issue of terrorism in the Philippines should be dealt with not from the perspective of Manila-Washington ties but from a serious study of how terrorism figures in the minds of leaders and armedmen belonging to the large but deeply factionalized guerrilla movements in the country. Terrorism cannever be dissociated from guerrilla warfare and the separatist movement in Mindanao. From thesemovements would arise religious extremists or millennarian groups. With the right resources and theright agenda, these movements will continue to attract men-skilled, intelligent, and experienced-who willcome to grasp the practical realities of waging a war with the minimum of resources but maximumpublic impact.

The government does not have to look for foreign connections-and be motivated by the desire to helpforeign friends to address a problem that has been and will be the making of its own home grownarmies.17

The presence of US troops in Basilan, whether from the legal, philosophical-or even from the practicalperspective cannot be justified, On the contrary, it is counterproductive. It serves to fuel an already volatilesituation. US troops are likely less able, if not less willing, to distinguish between the innocent and the enemy.The inevitable "collateral damage," the killing of women and children, Muslims and Christians, the destructionof homes, schools and hospitals would fan the flames of fanaticism and transform mere rogues into martyrs.

The Filipino soldier has proven himself brave, courageous, fearless and tenacious in the field of battle asshown in Bataan and Corregidor, in the four long years of guerilla warfare thereafter against the Japanese, andin the struggle for independence against Spain and the United States at the turn of the last century. The localarmy and police have successfully battled in the past against Communist and other insurgents which weremore organized and numerous, operating in larger parts of the country and fighting for their political beliefs. If

our troops need training by us advisers or have to conduct joint exercises with US troops to improve theirfighting capability, these could be more effectively achieved if done outside Basilan or away from the dangerzones. Instead of bringing troops to the combat zones, the US can do more by supplying our soldiers withmodern and high tech weaponry.

Prescinding from the foregoing disquisitions, it is totally erroneous to argue that petitioners do not have legalstanding or that the issues raised by them are premature and not based on sufficient facts. The issues raisedare of transcendental importance.18 The Balikatanexercises pose direct injury to some of the petitioners(intervenors) who live in the affected areas. The presence of us troops in the combat zones "assisting" and"advising" our troops in combat against the ASG is a blatant violation of the Constitutional proscription againstthe stationing of foreign troops to fight a local insurgency and puts the country in peril of becoming a veritablekilling field. If the time is not ripe to challenge the continuing affront against the Constitution and the safety of

the people, when is the right time? When the countryside has been devastated and numerous lives lost?

I therefore vote to give due course to the petition.

SEPARATE OPINION*

PANGANIBAN, J:

Through their "Petition for Certiorari and, Prohibition," Arthur D. Lim and Paulino R. Ersanda -- joined byIntervenors Sanlakas and Partido ng Manggagawa -- plead for the issuance of an order "restraining therespondents from proceeding or continuing and completing the so-called 'Balikatan 02-1'" on the ground that

the exercise is not sanctioned by any treaty and is, therefore, allegedly unconstitutional.

Agreeing with the Comment of the Office of the Solicitor General (OSG), the ponenciaof Mr. Justice Sabino R.de Leon Jr. dismisses the Petition essentially on these procedural grounds:

1. As taxpayers, petitioners do not have legal standing orlocus standi, because Balikatan 02-1 "doesnot involve the exercise by Congress of its taxing or spending power."


15/59

2. Certiorari and prohibition are improper remedies, because petitioners have not alleged sufficientfacts upon which grave abuse of discretion or excess/lack of jurisdiction could be argued from.

3. The Petition is premature because the alleged violation of the Constitution is merely speculative, notactual or imminent.

4. Though entitled "Certiorari and Prohibition," the Petition is really one for declaratory relief which

merely seeks an advice or opinion, not a decision. The Supreme Court has no jurisdiction to issueopinions or advices.

Ordinarily, the above reasons would indeed be sufficient to cause the dismissal of a petition. However,because of the "transcendental importance" of the main question raised - the constitutionality of the Balikatanexercise - the Court, I believe, could have exempted this case from these procedural requirements and tackledthe case on the merits, if only to put to rest the legality of this major event of public interest ill our country andeven ill the world. I, for one, would have voted to set aside these legalistic obstacles, had the Petitionpresented enough factual moorings upon which to base an intelligent discussion and disposition of the legalissues.

For instance, this Court cannot be called upon to decide the factual issues of whether the US forces areactually engaging the Abu Sayyaf Group ill combat and whether they will stay ill ourcountry permanently. ThisCourt has no authority to conduct a trial, which can establish these factual antecedents. Knowing what theseantecedents are is necessary to determine whether the Balikatan violates the Constitution or the MutualDefense Treaty (MDT) of 1951 or the Visiting Forces Agreement (VFA) of 1999. Verily, the Petition has noteven alleged that the American troops have indeed been unconstitutionally engaged ill actual offensivecombat. The contention that they would necessarily and surely violate the Constitution by participating ill the

joint exercise in Basilan is merely speculative. Petitioners aver:

"American soldiers with high-tech weaponry, disguised as trainers or advisers to Filipino troops, will goto the war zones of Basilan. Hence, while dubbed as a military exercise, it is in reality a continuingcombat operation by the AFP against the Abu Sayyaf to be participated in this time by U.S. troops. Ithas been admitted that U.S. 'advisers' will accompany Filipino soldiers on patrol in the combat zones.

Also, a base of operation will be in the Sampinit complex which is in the heartland of the Abu Sayyaf's'territorial domain' in Basilan island. A shooting war, not just an exercise, is unavoidable."

That a "shooting war is unavoidable" is conjectural; at best, a conclusion that is not borne by solid factualmoorings. Cases cannot be decided on mere speculation or prophecy .The Petition claims that while the ustroops are "disguised" as "advisers" or "trainors" or "chaperons," they are actually combatants engaged in anoffensive war against local insurgents. Again, there is no solid factual basis for this statement. It may or maynot be true. The Petition also alleges, again without firm factual support, that the American forces will stay hereindefinitely "for a year or even more depending on the need of the AFP for them."

On the other hand, the OSG assures that petitioners' "apprehensions are belied" by the Terms of Reference(TOR) approved by both the Philippines and the United States, which "expressly limit. the conduct andcompletion of the exercise within a period not exceeding six " (6) months and prohibits the Americanparticipants from engaging in combat, without prejudice to their right to self-defense."

I stress that cases cannot be decided by this Court on the basis of speculative or hypothetical assumptions like"If the facts were these, then our decision would be this; on the other hand, if the facts change, then our rulingwould be modified as follows. " Decisions of this Court especially in certiorari and prohibition cases are issuedonly if the facts are clear and definite. As a rule, courts may not consider or judge facts or matters unless theyare alleged in the pleadings and proven by the parties. Our duty is to apply the law to facts that are not indispute.

In the absence of firm factual findings that the Americans "will stay indefinitely" in our country or "are engagedin actual offensive combat with local insurgents" as alleged by petitioners, respondent Philippine officials whoare hosting the Balikatan exercise cannot possibly be imputed with grave abuse of discretion - anindispensable element of certiorari. 1wphi1.nt

True, there are some questions that may genuinely be raised in regard to the Balikatan 02-1 vis-a-vis ourConstitution, the MDT and the VFA, like the following:


16/59

(1) Is the Abu Sayyaf Group composed of "international terrorists" whose acts and practices violate theUnited Nations Charter to such an extent as to pose a threat to international peace and security?

(2) Is there an "external armed attack" against the Philippines sufficient in force and magnitude as tojustify an invocation of the MDT?

(3) Are the size, the kind, and the location of the Balikatan deployment justified by the nature, the

scope, the duration, and the kind of "activities" allowed under the VFA?

(4) Is it true that the real American objective is the rescue of ASG hostages Martin and GraciaBurnham, who are both American citizens? Ifso, is such rescue legally justified?

(5) Does the Balikatan pose a "political question " which the Supreme Court has no authority to ruleupon, and which may only be decided by our people directly or through their I elected representatives?

Unfortunately, the foregoing and other similar nagging questions cannot be judicially taken up and answereduntil a petition, sufficient in form and substance, is properly presented to the appropriate court.

FOR THE FOREGOING REASONS, I vote to DISMISSthe present Petition.


17/59

G.R. No. 152154 July 15, 2003

REPUBLIC OF THE PHILIPPINES, petitioner,vs.HONORABLE SANDIGANBAYAN (SPECIAL FIRST DIVISION), FERDINAND E. MARCOS(REPRESENTED BY HIS ESTATE/HEIRS: IMELDA R. MARCOS, MARIA IMELDA [IMEE] MARCOS-MANOTOC, FERDINAND R. MARCOS, JR. AND IRENE MARCOS-ARANETA) AND IMELDA ROMUALDEZ

MARCOS, respondents.

CORONA, J.:

This is a petition for certiorari under Rule 65 of the Rules of Court seeking to (1) set aside the Resolution datedJanuary 31, 2002 issued by the Special First Division of the Sandiganbayan in Civil Case No. 0141entitledRepublic of the Philippines vs. Ferdinand E. Marcos, et. al., and (2) reinstate its earlier decision datedSeptember 19, 2000 which forfeited in favor of petitioner Republic of the Philippines (Republic) the amountheld in escrow in the Philippine National Bank (PNB) in the aggregate amount of US$658,175,373.60 as ofJanuary 31, 2002.

BACKGROUND OF THE CASE

On December 17, 1991, petitioner Republic, through the Presidential Commission on Good Government(PCGG), represented by the Office of the Solicitor General (OSG), filed a petition for forfeiture before theSandiganbayan, docketed as Civil Case No. 0141 entitled Republic of the Philippines vs. Ferdinand E. Marcos,represented by his Estate/Heirs and Imelda R. Marcos, pursuant to RA 13791 in relation to Executive OrderNos. 1,2 2,3 144 and 14-A.5

In said case, petitioner sought the declaration of the aggregate amount of US$356 million (now estimated to bemore than US$658 million inclusive of interest) deposited in escrow in the PNB, as ill-gotten wealth. The fundswere previously held by the following five account groups, using various foreign foundations in certain Swissbanks:

(1) Azio-Verso-Vibur Foundation accounts;

(2) Xandy-Wintrop: Charis-Scolari-Valamo-Spinus- Avertina Foundation accounts;

(3) Trinidad-Rayby-Palmy Foundation accounts;

(4) Rosalys-Aguamina Foundation accounts and

(5) Maler Foundation accounts.

In addition, the petition sought the forfeiture of US$25 million and US$5 million in treasury notes which

exceeded the Marcos couple's salaries, other lawful income as well as income from legitimately acquiredproperty. The treasury notes are frozen at the Central Bank of the Philippines, now Bangko Sentral ngPilipinas, by virtue of the freeze order issued by the PCGG.

On October 18, 1993, respondents Imelda R. Marcos, Maria Imelda M. Manotoc, Irene M. Araneta andFerdinand R. Marcos, Jr. filed their answer.

Before the case was set for pre-trial, a General Agreement and the Supplemental Agreements6 datedDecember 28, 1993 were executed by the Marcos children and then PCGG Chairman Magtanggol Gunigundofor a global settlement of the assets of the Marcos family. Subsequently, respondent Marcos children filed amotion dated December 7, 1995 for the approval of said agreements and for the enforcement thereof.

The General Agreement/Supplemental Agreements sought to identify, collate, cause the inventory of anddistribute all assets presumed to be owned by the Marcos family under the conditions contained therein. Theaforementioned General Agreement specified in one of its premises or "whereas clauses" the fact thatpetitioner "obtained a judgment from the Swiss Federal Tribunal on December 21, 1990, that the ThreeHundred Fifty-six Million U.S. dollars (US$356 million) belongs in principle to the Republic of the Philippinesprovided certain conditionalities are met x x x." The said decision of the Swiss Federal Supreme Court affirmedthe decision of Zurich District Attorney Peter Consandey, granting petitioner's request for legalassistance.7 Consandey declared the various deposits in the name of the enumerated foundations to be of


18/59

illegal provenance and ordered that they be frozen to await the final verdict in favor of the parties entitled torestitution.

Hearings were conducted by the Sandiganbayan on the motion to approve the General/SupplementalAgreements. Respondent Ferdinand, Jr. was presented as witness for the purpose of establishing the partialimplementation of said agreements.

On October 18, 1996, petitioner filed a motion for summary judgment and/or judgment on the pleadings.Respondent Mrs. Marcos filed her opposition thereto which was later adopted by respondents Mrs. Manotoc,Mrs. Araneta and Ferdinand, Jr.

In its resolution dated November 20, 1997, the Sandiganbayan denied petitioner's motion for summaryjudgment and/or judgment on the pleadings on the ground that the motion to approve the compromiseagreement "(took) precedence over the motion for summary judgment."

Respondent Mrs. Marcos filed a manifestation on May 26, 1998 claiming she was not a party to the motion forapproval of the Compromise Agreement and that she owned 90% of the funds with the remaining 10%belonging to the Marcos estate.

Meanwhile, on August 10, 1995, petitioner filed with the District Attorney in Zurich, Switzerland, an additionalrequest for the immediate transfer of the deposits to an escrow account in the PNB. The request was granted.On appeal by the Marcoses, the Swiss Federal Supreme Court, in a decision dated December 10, 1997,upheld the ruling of the District Attorney of Zurich granting the request for the transfer of the funds. In 1998, thefunds were remitted to the Philippines in escrow. Subsequently, respondent Marcos children moved that thefunds be placed in custodia legisbecause the deposit in escrow in the PNB was allegedly in danger ofdissipation by petitioner. The Sandiganbayan, in its resolution dated September 8, 1998, granted the motion.

After the pre-trial and the issuance of the pre-trial order and supplemental pre-trial order dated October 28,1999 and January 21, 2000, respectively, the case was set for trial. After several resettings, petitioner, onMarch 10, 2000, filed another motion for summary judgment pertaining to the forfeiture of the US$356 million,based on the following grounds:

I

THE ESSENTIAL FACTS WHICH WARRANT THE FORFEITURE OF THE FUNDS SUBJECT OF THEPETITION UNDER R.A. NO. 1379 ARE ADMITTED BY RESPONDENTS IN THEIR PLEADINGS ANDOTHER SUBMISSIONS MADE IN THE COURSE OF THE PROCEEDING.

II

RESPONDENTS' ADMISSION MADE DURING THE PRE-TRIAL THAT THEY DO NOT HAVE ANYINTEREST OR OWNERSHIP OVER THE FUNDS SUBJECT OF THE ACTION FOR FORFEITURE

TENDERS NO GENUINE ISSUE OR CONTROVERSY AS TO ANY MATERIAL FACT IN THEPRESENT ACTION, THUS WARRANTING THE RENDITION OF SUMMARY JUDGMENT.8

Petitioner contended that, after the pre-trial conference, certain facts were established, warranting a summaryjudgment on the funds sought to be forfeited.

Respondent Mrs. Marcos filed her opposition to the petitioner's motion for summary judgment, whichopposition was later adopted by her co-respondents Mrs. Manotoc, Mrs. Araneta and Ferdinand, Jr.

On March 24, 2000, a hearing on the motion for summary judgment was conducted.

In a decision9 dated September 19, 2000, the Sandiganbayan granted petitioner's motion for summary

judgment:

CONCLUSION

There is no issue of fact which calls for the presentation of evidence.

The Motion for Summary Judgment is hereby granted.


19/59

The Swiss deposits which were transmitted to and now held in escrow at the PNB are deemedunlawfully acquired as ill-gotten wealth.

DISPOSITION

WHEREFORE, judgment is hereby rendered in favor of the Republic of the Philippines and against therespondents, declaring the Swiss deposits which were transferred to and now deposited in escrow at

the Philippine National Bank in the total aggregate value equivalent to US$627,608,544.95 as of August31, 2000 together with the increments thereof forfeited in favor of the State.10

Respondent Mrs. Marcos filed a motion for reconsideration dated September 26, 2000. Likewise, Mrs. Manotocand Ferdinand, Jr. filed their own motion for reconsideration dated October 5, 2000. Mrs. Araneta filed amanifestation dated October 4, 2000 adopting the motion for reconsideration of Mrs. Marcos, Mrs. Manotocand Ferdinand, Jr.

Subsequently, petitioner filed its opposition thereto.

In a resolution11 dated January 31, 2002, the Sandiganbayan reversed its September 19, 2000 decision, thusdenying petitioner's motion for summary judgment:

CONCLUSION

In sum, the evidence offered for summary judgment of the case did not prove that the money in theSwiss Banks belonged to the Marcos spouses because no legal proof exists in the record as to theownership by the Marcoses of the funds in escrow from the Swiss Banks.

The basis for the forfeiture in favor of the government cannot be deemed to have been established andour judgment thereon, perforce, must also have been without basis.

WHEREFORE, the decision of this Court dated September 19, 2000 is reconsidered and set aside, and

this case is now being set for further proceedings.12

Hence, the instant petition. In filing the same, petitioner argues that the Sandiganbayan, in reversing itsSeptember 19, 2000 decision, committed grave abuse of discretion amounting to lack or excess of jurisdictionconsidering that --

I

PETITIONER WAS ABLE TO PROVE ITS CASE IN ACCORDANCE WITH THE REQUISITES OFSECTIONS 2 AND 3 OF R.A. NO. 1379:

A. PRIVATE RESPONDENTS CATEGORICALLY ADMITTED NOT ONLY THE PERSONAL

CIRCUMSTANCES OF FERDINAND E. MARCOS AND IMELDA R. MARCOS AS PUBLICOFFICIALS BUT ALSO THE EXTENT OF THEIR SALARIES AS SUCH PUBLIC OFFICIALS,WHO UNDER THE CONSTITUTION, WERE PROHIBITED FROM ENGAGING IN THEMANAGEMENT OF FOUNDATIONS.

B. PRIVATE RESPONDENTS ALSO ADMITTED THE EXISTENCE OF THE SWISSDEPOSITS AND THEIR OWNERSHIP THEREOF:

1. ADMISSIONS IN PRIVATE RESPONDENTS' ANSWER;

2. ADMISSION IN THE GENERAL / SUPPLEMENTAL AGREEMENTS THEY SIGNEDAND SOUGHT TO IMPLEMENT;

3. ADMISSION IN A MANIFESTATION OF PRIVATE RESPONDENT IMELDA R.MARCOS AND IN THE MOTION TO PLACE THE RES IN CUSTODIA LEGIS; AND

4. ADMISSION IN THE UNDERTAKING TO PAY THE HUMAN RIGHTS VICTIMS.

C. PETITIONER HAS PROVED THE EXTENT OF THE LEGITIMATE INCOME OFFERDINAND E. MARCOS AND IMELDA R. MARCOS AS PUBLIC OFFICIALS.


20/59

D. PETITIONER HAS ESTABLISHED A PRIMA FACIEPRESUMPTION OF UNLAWFULLYACQUIRED WEALTH.

II

SUMMARY JUDGMENT IS PROPER SINCE PRIVATE RESPONDENTS HAVE NOT RAISED ANYGENUINE ISSUE OF FACT CONSIDERING THAT:

A. PRIVATE RESPONDENTS' DEFENSE THAT SWISS DEPOSITS WERE LAWFULLYACQUIRED DOES NOT ONLY FAIL TO TENDER AN ISSUE BUT IS CLEARLY A SHAM; AND

B. IN SUBSEQUENTLY DISCLAIMING OWNERSHIP OF THE SWISS DEPOSITS, PRIVATERESPONDENTS ABANDONED THEIR SHAM DEFENSE OF LEGITIMATE ACQUISITION,

AND THIS FURTHER JUSTIFIED THE RENDITION OF A SUMMARY JUDGMENT.

III

THE FOREIGN FOUNDATIONS NEED NOT BE IMPLEADED.

IV

THE HONORABLE PRESIDING JUSTICE COMMITTED GRAVE ABUSE OF DISCRETION INREVERSING HIMSELF ON THE GROUND THAT ORIGINAL COPIES OF THE AUTHENTICATEDSWISS DECISIONS AND THEIR "AUTHENTICATED TRANSLATIONS" HAVE NOT BEENSUBMITTED TO THE COURT, WHEN EARLIER THE SANDIGANBAYAN HAS QUOTEDEXTENSIVELY A PORTION OF THE TRANSLATION OF ONE OF THESE SWISS DECISIONS IN HIS"PONENCIA" DATED JULY 29, 1999 WHEN IT DENIED THE MOTION TO RELEASE ONEHUNDRED FIFTY MILLION US DOLLARS ($150,000,000.00) TO THE HUMAN RIGHTS VICTIMS.

V

PRIVATE RESPONDENTS ARE DEEMED TO HAVE WAIVED THEIR OBJECTION TO THEAUTHENTICITY OF THE SWISS FEDERAL SUPREME COURT DECISIONS.13

Petitioner, in the main, asserts that nowhere in the respondents' motions for reconsideration and supplementalmotion for reconsideration were the authenticity, accuracy and admissibility of the Swiss decisions everchallenged. Otherwise stated, it was incorrect for the Sandiganbayan to use the issue of lack of authenticatedtranslations of the decisions of the Swiss Federal Supreme Court as the basis for reversing itselfbecauserespondents themselves never raised this issuein their motions for reconsideration and supplemental motionfor reconsideration. Furthermore, this particular issue relating to the translation of the Swiss court decisionscould not be resurrected anymore because said decisions had been previously utilized by the Sandiganbayanitself in resolving a "decisive issue" before it.

Petitioner faults the Sandiganbayan for questioning the non-production of the authenticated translations of theSwiss Federal Supreme Court decisions as this was a marginal and technical matter that did not diminish byany measure the conclusiveness and strength of what had been proven and admitted before theSandiganbayan, that is, that the funds deposited by the Marcoses constituted ill-gotten wealth and thusbelonged to the Filipino people.

In compliance with the order of this Court, Mrs. Marcos filed her comment to the petition on May 22, 2002.After several motions for extension which were all granted, the comment of Mrs. Manotoc and Ferdinand, Jr.and the separate comment of Mrs. Araneta were filed on May 27, 2002.

Mrs. Marcos asserts that the petition should be denied on the following grounds:

A.

PETITIONER HAS A PLAIN, SPEEDY, AND ADEQUATE REMEDY AT THE SANDIGANBAYAN.

B.


21/59

THE SANDIGANBAYAN DID NOT ABUSE ITS DISCRETION IN SETTING THE CASE FORFURTHER PROCEEDINGS.14

Mrs. Marcos contends that petitioner has a plain, speedy and adequate remedy in the ordinary course of law inview of the resolution of the Sandiganbayan dated January 31, 2000 directing petitioner to submit theauthenticated translations of the Swiss decisions. Instead of availing of said remedy, petitioner now elevatesthe matter to this Court. According to Mrs. Marcos, a petition for certiorari which does not comply with the

requirements of the rules may be dismissed. Since petitioner has a plain, speedy and adequate remedy, thatis, to proceed to trial and submit authenticated translations of the Swiss decisions, its petition before this Courtmust be dismissed. Corollarily, the Sandiganbayan's ruling to set the case for further proceedings cannot andshould not be considered a capricious and whimsical exercise of judgment.

Likewise, Mrs. Manotoc and Ferdinand, Jr., in their comment, prayed for the dismissal of the petition on thegrounds that:

(A)

BY THE TIME PETITIONER FILED ITS MOTION FOR SUMMARY JUDGMENT ON 10 MARCH 2000,IT WAS ALREADY BARRED FROM DOING SO.

(1) The Motion for Summary Judgment was based on private respondents' Answer and otherdocuments that had long been in the records of the case. Thus, by the time the Motion was filed on 10March 2000, estoppel by laches had already set in against petitioner.

(2) By its positive acts and express admissions prior to filing the Motion for Summary Judgment on 10March 1990, petitioner had legally bound itself to go to trial on the basis of existing issues. Thus, itclearly waived whatever right it had to move for summary judgment.

(B)

EVEN ASSUMING THAT PETITIONER WAS NOT LEGALLY BARRED FROM FILING THE MOTIONFOR SUMMARY JUDGMENT, THE SANDIGANBAYAN IS CORRECT IN RULING THAT PETITIONERHAS NOT YET ESTABLISHED A PRIMA FACIE CASE FOR THE FORFEITURE OF THE SWISSFUNDS.

(1) Republic Act No. 1379, the applicable law, is a penal statute. As such, its provisions, particularly theessential elements stated in section 3 thereof, are mandatory in nature. These should be strictlyconstrued against petitioner and liberally in favor of private respondents.

public int'l law cases

Documents

Transcript of public int'l law cases