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Republic of the PhilippinesSUPREME COURT

Manila

EN BANC

G.R. No. 187298 July 03, 2012

JAMAR M. KULAYAN, TEMOGEN S. TULAW E, !J . MO!. YUSOP SM , JUL!AJAN AWA" , #$% SPO1 SATTAL !.JA"JUL , Petitioners,vs.GO&. A'"USAKUR M. TAN, ($ )(* +# #+(-y #* Go / $o o Sulu GEN. JUANC!O SA'AN, COL. EUGEN OCLEMEN PN, P SUPT. JULAS R M KAS M #$% P SUPT. ' EN&EN "O G. LATAG, ($ -)/( +# #+(-y #* o (+/ * o -)/P)(l. M# ($/* #$% P)(l. N#-(o$#l Pol(+/, /* /+-( /ly, Respondents.

D E C I S I N

SERENO, J.:

n !" #anuar$ %&&', three (e(bers fro( the International Co((ittee of the Red Cross )ICRC* +ere idnapped in thevicinit$ of the Provincial Capitol in Pati ul, Sulu. ! Andres Notter, a S+iss national and head of the ICRC in -a(boan aCit$, Eu enio /a ni, an Italian national and ICRC dele ate, and Marie #ean 0acaba, a 1ilipino en ineer, +ere purportedl$inspectin a +ater and sanitation pro2ect for the Sulu Provincial #ail +hen inspectin a +ater and sanitation pro2ect for theSulu Provincial #ail +hen the$ +ere sei3ed b$ three ar(ed (en +ho +ere later confir(ed to be (e(bers of the AbuSa$$af 4roup )AS4* .% 5he leader of the alle ed idnappers +as identified as Raden Abu, a for(er uard at the SuluProvincial #ail. Ne+s reports lin ed Abu to Albader Parad, one of the no+n leaders of the Abu Sa$$af.

n %! #anuar$ %&&', a tas force +as created b$ the ICRC and the Philippine National Police )PNP*, +hich thenor ani3ed a parallel local roup no+n as the 0ocal Crisis Co((ittee. 6 5he local roup, later rena(ed Sulu CrisisMana e(ent Co((ittee, convened under the leadership of respondent Abdusa ur Mahail 5an, the Provincial 4overnor of Sulu. Its ar(ed forces co(ponent +as headed b$ respondents 4eneral #uancho Saban, and his deput$, Colonel Eu enioCle(en. 5he PNP co(ponent +as headed b$ respondent Police Superintendent Bienvenido 4. 0ata , the Police Deput$Director for perations of the Autono(ous Re ion of Musli( Mindanao )ARMM*. 7

4overnor 5an or ani3ed the Civilian E(er enc$ 1orce )CE1*, a roup of ar(ed (ale civilians co(in fro( different(unicipalities, +ho +ere redeplo$ed to surroundin areas of Pati ul. " 5he or ani3ation of the CE1 +as e(bodied in a8Me(orandu( of 9nderstandin 8 : entered into

bet+een three parties; the provincial overn(ent of Sulu, represented b$ 4overnor 5an< the Ar(ed 1orces of thePhilippines, represented b$ 4en. Saban< and the Philippine National Police, represented b$ P=S9P5. 0ata . 5he >hereasclauses of the Me(orandu( alluded to the e?traordinar$ situation in Sulu, and the +illin ness of civilian supporters of the(unicipal (a$ors to offer their services in order that 8the earl$ and safe rescue of the hosta es (a$ be achieved.8 @

5his Me(orandu(, +hich +as labeled secret on its all pa es, also outlined the responsibilities of each of the part$si natories, as follo+s;

Responsibilities of the Provincial 4overn(ent;

!* 5he Provincial 4overn(ent shall source the funds and lo istics needed for the activation of the CE1e advanced at the start of ur rulin are 2ustified under the fore oin e?ceptions. Ever$bad, unusual incident +here police officers fi ure in enerates public interest and people +atch +hat +ill be done or notdone to the(. 0ac of disciplinar$ steps ta en a ainst the( erode public confidence in the police institution. As petitionersthe(selves assert, the restrictive custod$ of police(en under investi ation is an e?istin practice, hence, the issue isbound to crop up ever$ no+ and then. 5he (atter is capable of repetition or susceptible of recurrence. It better beresolved no+ for the education and uidance of all concerned. 6! )E(phasis supplied*

ence, the instant petition is iven due course, i(pressed as it is +ith transcendental public i(portance.

II. $nly the %resident is "ested with callin &out powers' as the commander&in&chief of the (epublic

i. $ne executi"e' one commander&in&chief

As earl$ as /illena v. Secretar$ of Interior, 6% it has alread$ been established that there is one repositor$ of e?ecutivepo+ers, and that is the President of the Republic. 5his (eans that +hen Section !, Article /II of the Constitution spea s of e?ecutive po+er, it is ranted to the President and no one else. 66 As e(phasi3ed b$ #ustice #ose P. 0aurel, in hisponencia in /illena;

>ith reference to the E?ecutive Depart(ent of the overn(ent, there is one purpose +hich is cr$stal clear and is readil$visible +ithout the pro2ection of 2udicial searchli ht, and that is the establish(ent of a sin le, not plural, E?ecutive. 5he firstsection of Article /II of the Constitution, dealin +ith the E?ecutive Depart(ent, be ins +ith the enunciation of theprinciple that 85he e?ecutive po+er shall be vested in a President of the Philippines.8 5his (eans that the President of thePhilippines is the E?ecutive of the 4overn(ent of the Philippines, and no other .67

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Corollaril$, it is onl$ the President, as E?ecutive, +ho is authori3ed to e?ercise e(er enc$ po+ers as provided underSection %6, Article /I, of the Constitution, as +ell as +hat beca(e no+n as the callin out po+ers under Section @,

Article /II thereof.

ii. The exceptional character of Commander&in&Chief powers dictate that they are exercised by one president

Sprin in fro( the +ell entrenched constitutional precept of ne President is the notion that there are certain acts +hich,b$ their ver$ nature, (a$ onl$ be perfor(ed b$ the president as the ead of the State. ne of these acts or prero ativesis the bundle of Co((ander in Chief po+ers to +hich the 8callin out8 po+ers constitutes a portion. 5he President s

E(er enc$ Po+ers, on the other hand, is balanced onl$ b$ the le islative act of Con ress, as e(bodied in the secondpara raph of Section %6, Article : of the Constitution;

Article :, Sec %6)%*. In ti(es of +ar or other national e(er enc$, the Con ress (a$, b$ la+, authori3e the President, for ali(ited period and sub2ect to such restrictions as it (a$ prescribe, to e?ercise po+ers necessar$ and proper to carr$ out adeclared national polic$. 9nless sooner +ithdra+n b$ resolution of the Con ress, such po+ers shall cease upon the ne?tad2ourn(ent thereof. 6"

Article @, Sec ! . 5he President shall be the Co((ander in Chief of all ar(ed forces of the Philippines and +henever itbeco(es necessar$, he (a$ call out such ar(ed forces to prevent or suppress la+less violence, invasion or rebellion. Incase of invasion or rebellion, +hen the public safet$ reHuires it, he (a$, for a period not e?ceedin si?t$ da$s, suspendthe privile e of the +rit of habeas corpus or place the Philippines or an$ part thereof under (artial la+. >ithin fort$ ei hthours fro( the procla(ation of (artial la+ or the suspension of the privile e of the +rit of habeas corpus, the President

shall sub(it a report in person or in +ritin to the Con ress. 5he Con ress, votin 2ointl$, b$ a vote of at least a (a2orit$ of all its Me(bers in re ular or special session, (a$ revo e such procla(ation or suspension, +hich revocation shall not beset aside b$ the President. 9pon the initiative of the President, the Con ress (a$, in the sa(e (anner, e?tend suchprocla(ation or suspension for a period to be deter(ined b$ the Con ress, if the invasion or rebellion shall persist andpublic safet$ reHuires it.

5he Con ress, if not in session, shall, +ithin t+ent$ four hours follo+in such procla(ation or suspension, convene inaccordance +ith its rules +ithout need of a call. 6:

5he po+er to declare a state of (artial la+ is sub2ect to the Supre(e Court s authorit$ to revie+ the factual basisthereof. 6@ B$ constitutional fiat, the callin out po+ers, +hich is of lesser ravit$ than the po+er to declare (artial la+, isbesto+ed upon the President alone. As noted in /illena, 8)t*here are certain constitutional po+ers and prero atives of theChief E?ecutive of the Nation +hich (ust be e?ercised b$ hi( in person and no a(ount of approval or ratification +illvalidate the e?ercise of an$ of those po+ers b$ an$ other person. Such, for instance, is his po+er to suspend the +rit ofhabeas corpus and proclai( (artial la+ ? ? ?. 6

Indeed, +hile the President is still a civilian, Article II, Section 6 6' of the Constitution (andates that civilian authorit$ is, atall ti(es, supre(e over the (ilitar$, (a in the civilian president the nation s supre(e (ilitar$ leader. 5he net effect of

Article II, Section 6, +hen read +ith Article /II,

Section ! , is that a civilian President is the cere(onial, le al and ad(inistrative head of the ar(ed forces. 5heConstitution does not reHuire that the President (ust be possessed of (ilitar$ trainin and talents, but as Co((ander inChief, he has the po+er to direct (ilitar$ operations and to deter(ine (ilitar$ strate $. Nor(all$, he +ould be e?pected todele ate the actual co((and of the ar(ed forces to (ilitar$ e?perts< but the ulti(ate po+er is his. 7& As Co((ander inChief, he is authori3ed to direct the (ove(ents of the naval and (ilitar$ forces placed b$ la+ at his co((and, and toe(plo$ the( in the (anner he (a$ dee( (ost effectual. 7!

In the case of Inte rated Bar of the Philippines v. -a(ora, 7% the Court had occasion to rule that the callin out po+ersbelon solel$ to the President as co((ander in chief;

>hen the President calls the ar(ed forces to prevent or suppress la+less violence, invasion or rebellion, he necessaril$e?ercises a discretionar$ po+er solel$ vested in his +isdo(. 5his is clear fro( the intent of the fra(ers and fro( the te?tof the Constitution itself. 5he Court, thus, cannot be called upon to overrule the President s +isdo( or substitute its o+n.

o+ever, this does not prevent an e?a(ination of +hether such po+er +as e?ercised +ithin per(issible constitutionalli(its or +hether it +as e?ercised in a (anner constitutin rave abuse of discretion. In vie+ of the constitutional intent to

ive the President full discretionar$ po+er to deter(ine the necessit$ of callin out the ar(ed forces, it is incu(bent uponthe petitioner to sho+ that the President s decision is totall$ bereft of factual basis.

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5here is a clear te?tual co((it(ent under the Constitution to besto+ on the President full discretionar$ po+er to call outthe ar(ed forces and to deter(ine the necessit$ for the e?ercise of such po+er. 76)E(phasis supplied*

9nder the fore oin provisions, Con ress (a$ revo e such procla(ation or suspension and the Court (a$ revie+ thesufficienc$ of the factual basis thereof. o+ever, there is no such eHuivalent provision dealin +ith the revocation orrevie+ of the President s action to call out the ar(ed forces. 5he distinction places the callin out po+er in a differentcate or$ fro( the po+er to declare (artial la+ and the po+er to suspend the privile e of the +rit of habeas corpus,other+ise, the fra(ers of the Constitution +ould have si(pl$ lu(ped to ether the three po+ers and provided for theirrevocation and revie+ +ithout an$ Hualification. 77

5hat the po+er to call upon the ar(ed forces is discretionar$ on the president is clear fro( the deliberation of theConstitutional Co((ission;

1R. BERNAS. It +ill not (a e an$ difference. I (a$ add that there is a raduated po+er of the President as Co((anderin Chief. 1irst, he can call out such Ar(ed 1orces as (a$ be necessar$ to suppress la+less violence< then he cansuspend the privile e of the +rit of habeas corpus, then he can i(pose (artial la+. 5his is a raduated seHuence.

>hen he 2ud es that it is necessar$ to i(pose (artial la+ or suspend the privile e of the +rit of habeas corpus, his 2ud (ent is sub2ect to revie+. >e are (a in it sub2ect to revie+ b$ the Supre(e Court and sub2ect to concurrence b$ theNational Asse(bl$. But +hen he e?ercises this lesser po+er of callin on the Ar(ed 1orces, +hen he sa$s it is necessar$,it is ($ opinion that his 2ud (ent cannot be revie+ed b$ an$bod$.

? ? ? ? ? ? ? ? ?

MR. RE4A0AD . 5hat does not reHuire an$ concurrence b$ the le islature nor is it sub2ect to 2udicial revie+.

5he reason for the difference in the treat(ent of the afore(entioned po+ers hi hli hts the intent to rant the President the+idest lee+a$ and broadest discretion in usin the po+er to call out because it is considered as the lesser and (orebeni n po+er co(pared to the po+er to suspend the privile e of the +rit of habeas corpus and the po+er to i(pose(artial la+, both of +hich involve the curtail(ent and suppression of certain basic civil ri hts and individual freedo(s, andthus necessitatin safe uards b$ Con ress and revie+ b$ this Court.

? ? ? 5hus, it is the unclouded intent of the Constitution to vest upon the President, as Co((ander in Chief of the Ar(ed1orces, full discretion to call forth the (ilitar$ +hen in his 2ud (ent it is necessar$ to do so in order to prevent or suppress

la+less violence, invasion or rebellion.7"

)E(phasis Supplied*

In the (ore recent case of Constantino, #r. v. Cuisia, 7: the Court characteri3ed these po+ers as e?clusive to the President,precisel$ because the$ are of e?ceptional i(port;

5hese distinctions hold true to this da$ as the$ re(ain e(bodied in our funda(ental la+. 5here are certain presidentialpo+ers +hich arise out of e?ceptional circu(stances, and if e?ercised, +ould involve the suspension of funda(entalfreedo(s, or at least call for the supersedence of e?ecutive prero atives over those e?ercised b$ co eHual branches of

overn(ent. 5he declaration of (artial la+, the suspension of the +rit of habeas corpus, and the e?ercise of thepardonin po+er, not+ithstandin the 2udicial deter(ination of uilt of the accused, all fall +ithin this special class thatde(ands the e?clusive e?ercise b$ the President of the constitutionall$ vested po+er. 5he list is b$ no (eans e?clusive,but there (ust be a sho+in that the e?ecutive po+er in Huestion is of si(ilar ra"itas and e?ceptional i(port .7@

In addition to bein the co((ander in chief of the ar(ed forces, the President also acts as the leader of the countr$ spolice forces, under the (andate of Section !@, Article /II of the Constitution, +hich provides that, 85he President shallhave control of all the e?ecutive depart(ents, bureaus, and offices. e shall ensure that the la+s be faithfull$ e?ecuted.8Durin the deliberations of the Constitutional Co((ission on the fra(in of this provision, 1r. Bernas defended theretention of the +ord 8control,8 e(plo$in the sa(e rationale of sin ularit$ of the office of the president, as the onl$E?ecutive under the presidential for( of overn(ent. 7

Re ardin the countr$ s police force, Section :, Article L/I of the Constitution states that; 85he State shall establish and(aintain one police force, +hich shall be national in scope and civilian in character, to be ad(inistered and controlled b$ anational police co((ission. 5he authorit$ of local e?ecutives over the police units in their 2urisdiction shall be provided b$la+.8 7'

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A local chief e?ecutive, such as the provincial overnor, e?ercises operational supervision over the police, "& and (a$e?ercise control onl$ in da$ to da$ operations, "i) ;

Mr. Natividad; B$ e?perience, it is not advisable to provide either in our Constitution or b$ la+ full control of the police b$the local chief e?ecutive and local e?ecutives, the (a$ors. B$ our e?perience, this has spa+ned +arlordis(, bossis( andsanctuaries for vices and abuses. If the national overn(ent does not have a (echanis( to supervise these !,"&& le all$,technicall$ separate police forces, plus :! cit$ police forces, fra (ented police s$ste(, +e +ill have a lot of difficult$ inpresentin a (odern professional police force. So that a certain a(ount of supervision and control +ill have to bee?ercised b$ the national overn(ent.

1or e?a(ple, if a local overn(ent, a to+n cannot handle its peace and order proble(s or police proble(s, such as riots,confla rations or or ani3ed cri(e, the national overn(ent (a$ co(e in, especiall$ if reHuested b$ the local e?ecutives.9nder that situation, if the$ co(e in under such an e?traordinar$ situation, the$ +ill be in control. But if the da$ to da$business of police investi ation of cri(e, cri(e prevention, activities, traffic control, is all lod ed in the (a$ors, and if the$are in co(plete operational control of the da$ to da$ business of police service, +hat the national overn(ent +ouldcontrol +ould be the ad(inistrative aspect.

? ? ? ? ? ? ? ? ?

Mr. de los Re$es; so the operational control on a da$ to da$ basis, (eanin , the usual duties bein perfor(ed b$ theordinar$ police(en, +ill be under the supervision of the local e?ecutives

Mr. Natividad; Fes, Mada( President.

? ? ? ? ? ? ? ? ?

Mr. de los Re$es; But in e?ceptional cases, even the operational control can be ta en over b$ the National PoliceCo((ission

Mr. Natividad; If the situation is be$ond the capacit$ of the local overn(ents. "! )E(phases supplied*

1urther(ore accordin to the fra(ers, it is still the President +ho is authori3ed to e?ercise supervision and control overthe police, throu h the National Police Co((ission;

Mr. Rodri o; #ust a fe+ Huestions. 5he President of the Philippines is the Co((ander in Chief of all the ar(ed forces.

Mr. Natividad; Fes, Mada( President.

Mr. Rodri o; Since the national police is not inte rated +ith the ar(ed forces, I do not suppose the$ co(e under theCo((ander in Chief po+ers of the President of the Philippines.

Mr. Natividad; 5he$ do, Mada( President. B$ la+, the$ are under the supervision and control of the President of thePhilippines.

Mr. Rodri o; Fes, but the President is not the Co((ander in Chief of the national police.

Mr. Natividad; e is the President.

Mr. Rodri o; Fes, the E?ecutive. But the$ do not co(e under that specific provision that the President is the Co((anderin Chief of all the ar(ed forces.

Mr. Natividad; No, not under the Co((ander in Chief provision.

Mr. Rodri o; 5here are t+o other po+ers of the President. 5he

President has control over (inistries, bureaus and offices, and supervision over local overn(ents. 9nder +hich does thepolice fall, under control or under supervision

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Mr. Natividad; Both, Mada( President.

Mr. Rodri o; Control and supervision.

Mr. Natividad; Fes, in fact, the National Police Co((ission is under the ffice of the President. "%

In the discussions of the Constitutional Commission re ardin the abo"e pro"ision it is clear that the framers ne"erintended for local chief executi"es to exercise unbridled control o"er the police in emer ency situations. 5his is +ithoutpre2udice to their authorit$ over police units in their 2urisdiction as provided b$ la+, and their prero ative to seeassistance fro( the police in da$ to da$ situations, as conte(plated b$ the Constitutional Co((ission. But as a civiliana enc$ of the overn(ent, the police, throu h the NAP 0C M, properl$ co(es +ithin, and is sub2ect to, the e?ercise b$the President of the po+er of e?ecutive control. "6

iii. The pro"incial o"ernor does not possess the same callin &out powers as the %resident

4iven the fore oin , respondent provincial overnor is not endo+ed +ith the po+er to call upon the ar(ed forces at hiso+n biddin . In issuin the assailed procla(ation, 4overnor 5an e?ceeded his authorit$ +hen he declared a state ofe(er enc$ and called upon the Ar(ed 1orces, the police, and his o+n Civilian E(er enc$ 1orce. 5he callin out po+ersconte(plated under the Constitution is e?clusive to the President. An e?ercise b$ another official, even if he is the localchief e?ecutive, is ultra vires, and (a$ not be 2ustified b$ the invocation of Section 7:" of the 0ocal 4overn(ent Code, as+ill be discussed subseHuentl$.

Respondents, ho+ever, 2ustif$ this stance b$ statin that no+here in the se(inal case of David v. Arro$o, +hich dealtsHuarel$ +ith the issue of the declaration of a state of e(er enc$, does it li(it the said authorit$ to the President alone.Respondents contend that the rulin in David e?pressl$ li(its the authorit$ to declare a national e(er enc$, a condition+hich covers the entire countr$, and does not include e(er enc$ situations in local overn(ent units. "7 5his clai( isbelied b$ the clear intent of the fra(ers that in all situations involvin threats to securit$, such as la+less violence,invasion or rebellion, even in locali3ed areas, it is still the President +ho possesses the sole authorit$ to e?ercise callinout po+ers. As reflected in the #ournal of the Constitutional Co((ission;

5hereafter, Mr. Padilla proposed on line %' to insert the phrase R P9B0IC DIS RDER in lieu of 8invasion or rebellion.8Mr. Su(ulon stated that the co((ittee could not accept the a(end(ent because under the first section of Section !",the President (a$ call out and (a e use of the ar(ed forces to prevent or suppress not onl$ la+less violence but eveninvasion or rebellion +ithout declarin (artial la+. e observed that b$ deletin 8invasion or rebellion8 and substitutinP9B0IC DIS RDER, the President +ould have to declare (artial la+ before he can (a e use of the ar(ed forces toprevent or suppress la+less invasion or rebellion.

Mr. Padilla, in repl$ thereto, stated that the first sentence conte(plates a li hter situation +here there is so(e la+lessviolence in a s(all portion of the countr$ or public disorder in another at +hich ti(es, the ar(ed forces can be called toprevent or suppress these incidents. e noted that the Co((ander in Chief can do so in a (inor de ree but he can alsoe?ercise such po+ers should the situation +orsen. 5he +ords 8invasion or rebellion8 to be eli(inated on line !7 arecovered b$ the follo+in sentence +hich provides for 8invasion or rebellion.8 e (aintained that the proposed a(end(entdoes not (ean that under such circu(stances, the President cannot call on the ar(ed forces to prevent or suppress thesa(e. "" )E(phasis supplied*

III. Section *+, of the -ocal

o"ernment Code cannot be in"oked to /ustify the powers enumerated under %roclamation 1&0

Respondent overnor characteri3ed the idnappin of the three ICRC +or ers as a terroristic act, and used this incidentto 2ustif$ the e?ercise of the po+ers enu(erated under Procla(ation ! &'. ": e invo es Section 7:", in relation to Section!:, of the 0ocal 4overn(ent Code, +hich purportedl$ allo+s the overnor to carr$ out e(er enc$ (easures and callupon the appropriate national la+ enforce(ent a encies for assistance. But a closer loo at the said procla(ation sho+sthat there is no provision in the 0ocal 4overn(ent Code nor in an$ la+ on +hich the broad and un+arranted po+ers

ranted to the 4overnor (a$ be based.

Petitioners cite the i(ple(entation of 84eneral Search and Sei3ure includin arrests in the pursuit of the idnappers andtheir supporters,8 "@ as bein violative of the constitutional proscription on eneral search +arrants and eneral sei3ures.Petitioners ri htl$ assert that this alone +ould be sufficient to render the procla(ation void, as eneral searches andsei3ures are proscribed, for bein violative of the ri hts enshrined in the Bill of Ri hts, particularl$;

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5he ri ht of the people to be secure in their persons, houses, papers, and effects a ainst unreasonable searches andsei3ures of +hatever nature and for an$ purpose shall be inviolable, and no search +arrant or +arrant of arrest shall issuee?cept upon probable cause to be deter(ined personall$ b$ the 2ud e after e?a(ination under oath or affir(ation of theco(plainant and the +itnesses he (a$ produce, and particularl$ describin the place to be searched and the persons orthin s to be sei3ed. "

In fact, respondent overnor has arro ated unto hi(self po+ers e?ceedin even the (artial la+ po+ers of the President,because as the Constitution itself declares, 8A state of (artial la+ does not suspend the operation of the Constitution, norsupplant the functionin of the civil courts or le islative asse(blies, nor authori3e the confer(ent of the 2urisdiction on

(ilitar$ courts and a encies over civilians +here civil courts are able to function, nor auto(aticall$ suspend the privile eof the +rit.8 "'

>e find, and so hold, that there is nothin in the 0ocal 4overn(ent Code +hich 2ustifies the acts sanctioned under thesaid Procla(ation. Not even Section 7:" of the said Code, in relation to Section !:, +hich states;

Section 7:". 5he Chief E?ecutive; Po+ers, Duties, 1unctions, and Co(pensation.

? ? ? ? ? ? ? ? ?

)b* 1or efficient, effective and econo(ical overnance the purpose of +hich is the eneral +elfare of the province and itsinhabitants pursuant to Section !: of this Code, the provincial overnor shall;

)!* E?ercise eneral supervision and control over all pro ra(s, pro2ects, services, and activities of the provincialovern(ent, and in this connection, shall;

? ? ? ? ? ? ? ? ?

)vii* Carr$ out such e(er enc$ (easures as (a$ be necessar$ durin and in the after(ath of (an (ade and naturaldisasters and cala(itieselfare. Ever$ local overn(ent unit shall e?ercise the po+ers e?pressl$ ranted, those necessaril$i(plied therefro(, as +ell as po+ers necessar$, appropriate, or incidental for its efficient and effective overnance, andthose +hich are essential to the pro(otion of the eneral +elfare. >ithin their respective territorial 2urisdictions, local

overn(ent units shall ensure and support, a(on other thin s, the preservation and enrich(ent of culture, pro(otehealth and safet$, enhance the ri ht of the people to a balanced ecolo $, encoura e and support the develop(ent ofappropriate and self reliant scientific and technolo ical capabilities, i(prove public (orals, enhance econo(ic prosperit$and social 2ustice, pro(ote full e(plo$(ent a(on their residents, (aintain peace and order, and preserve the co(fortand convenience of their inhabitants. )E(phases supplied*

Respondents cannot rel$ on para raph !, subpara raph )vii* of Article 7:" above, as the said provision e?pressl$ refers tocala(ities and disasters, +hether (an (ade or natural. 5he overnor, as local chief e?ecutive of the province, is certainl$e(po+ered to enact and i(ple(ent e(er enc$ (easures durin these occurrences. But the idnappin incident in thecase at bar cannot be considered as a cala(it$ or a disaster. Respondents cannot find an$ le al (oorin under thisprovision to 2ustif$ their actions.

Para raph %, subpara raph )vi* of the sa(e provision is eHuall$ inapplicable for t+o reasons. 1irst, the Ar(ed 1orces ofthe Philippines does not fall under the cate or$ of a 8national la+ enforce(ent a enc$,8 to +hich the National PoliceCo((ission )NAP 0C M* and its depart(ents belon .

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> ERE1 RE, the instant petition is 4RAN5ED. #ud (ent is rendered co((andin respondents to desist fro( furtherproceedin s ( i(ple(entin Procla(ation No. !, Series of %&&', and its I(ple(entin 4uidelines. 5he said procla(ationand uidelines are hereb$ declared N900 and / ID for havin been issued in rave abuse of discretion, a(ountin tolac or e?cess of 2urisdiction.

S RDERED.

Sabah Claim is Non-Negotiable

The Struggle of the Philippine Muslims: AHistorical Perspective

State of Emergency in Sulu llegal !Supreme CourtPosted by AhlussuluK on September 2, 2012

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7 E C S 6 N

SE&EN6, %:

On 15 January 2009, three members from the Internat onal!omm ttee of the "ed !ross #I!"!$ %ere & dnapped n the' ( n ty of the Pro' n( al !ap tol n Pat &ul, Sulu) *1+ Andres

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otter, a S% ss nat onal and head of the I!"! n -amboan.a! ty, /u.en o a.n , an Ital an nat onal and I!"! dele.ate, and

ar e Jean a(aba, a 3 l p no en. neer, %ere purportedlynspe(t n. a %ater and nspe(t n. a %ater san tat on pro4e(t for

the the Sulu Pro' n( al Ja l %hen nspe(t n. a %ater and

san tat on pro4e(t for the Sulu Pro' n( al Ja l %hen they %erese ed by three armed men %ho %ere later (onf rmed to bemembers of the Abu Sayyaf 6roup #AS6$) *2+ 7he leader of thealle.ed & dnappers %as dent f ed as "aden Abu, a former .uardat the Sulu Pro' n( al Ja l) e%s reports l n&ed Abu to AlbaderParad, one of the &no%n leaders of the Abu Sayyaf)On 21 January 2009, a tas& for(e %as (reated by the I!"! andthe Ph l pp ne at onal Pol (e #P P$, %h (h then or.an ed aparallel lo(al .roup &no%n as the o(al !r s s !omm ttee) *8+ 7helo(al .roup, later renamed Sulu !r s s ana.ement !omm ttee,(on'ened under the leadersh p of respondent Abdusa&ur aha l7an, the Pro' n( al 6o'ernor of Sulu) Its armed for(es(omponent %as headed by respondents 6eneral Juan(ho Saban,and h s deputy, !olonel /u.en o !lemen) 7he P P (omponent%as headed by respondent Pol (e Super ntendent en'en do 6)

ata., the Pol (e :eputy : re(tor for Operat ons of theAutonomous "e. on of usl m ndanao #A" $) *;+

6o'ernor 7an or.an ed the ! ' l an /mer.en(y 3or(e #!/3$, a.roup of armed male ( ' l ans (om n. from d fferentmun ( pal t es, %ho %ere redeployed to surround n. areas ofPat &ul)*5+ 7he or.an at on of the !/3 %as embod ed n a

< emorandum of =nderstand n.> *?+ entered nto bet%een three

part es@ the pro' n( al .o'ernment of Sulu, represented by6o'ernor 7an the Armed 3or(es of the Ph l pp nes, representedby 6en) Saban and the Ph l pp ne at onal Pol (e, representedby PBS=P7) ata.) 7he Whereas (lauses of the emorandumalluded to the eCtraord nary s tuat on n Sulu, and the% ll n.ness of ( ' l an supporters of the mun ( pal mayors to

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offer the r ser' (es n order that

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:O / A7 7G/ P"O I !IA !API7O , P"O I !/ O3S= = 7GIS 81 S7 :A O3 A"!G 2009)

S.d) Abdusa&ur ) 7an6o'ernor) *1;+

On 1 Apr l 2009, SPO1 Sattal Jad4ul %as nstru(ted by h ssuper or to report to respondent PBS=P7) Julas r m Kas m)*15+ =pon arr ' n. at the pol (e stat on, he %as boo&ed, and

nter' e%ed about h s relat onsh p to us n, Ja ton, and Julam n,%ho %ere all h s de(eased relat 'es) =pon adm tt n. that he %as

ndeed related to the three, he %as deta ned) After a fe% hours,former Punong Barangay Jul4ahan A%ad , Gad4 Gad4 rul ambra,Abdu.a4 r Gad4 rul, as %ell as PO2 ar( al Ga4an, SPO8 uh lmIsmula, Punong Barangay Alano ohammad and 4eepney dr 'erAbduhad Sabdan , %ere also arrested) *1?+ 7he aff da' t *1D+ of theapprehend n. off (er alle.ed that they %ere suspe(ted AS6supporters and %ere be n. arrested under Pro(lamat on 1H09)7he follo% n. day, 2 Apr l 2009, the hosta.e ary Jane a(aba%as released by the AS6)

On ; Apr l 2009, the off (e of 6o'ernor 7an d str buted to ( ' (or.an at ons, (op es of the

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!ert orar and Proh b t on, *19+ (la m n. that Pro(lamat on 1H09%as ssued % th .ra'e abuse of d s(ret on amount n. to la(& oreC(ess of 4ur sd (t on, as t threatened fundamental freedoms.uaranteed under Art (le III of the 19 D !onst tut on)

Pet t oners (ontend that Pro(lamat on o) 1 and tsImplement n. 6u del nes %ere ssued ultra vires , and thus nulland 'o d, for ' olat n. Se(t ons 1 and 1 , Art (le II of the!onst tut on, %h (h .rants the Pres dent sole author ty toeCer( se emer.en(y po%ers and (all n.Hout po%ers as the (h efeCe(ut 'e of the "epubl ( and (ommanderH nH(h ef of the armedfor(es) *20+ Add t onally, pet t oners (la m that the Pro' n( al6o'ernor s not author ed by any la% to (reate ( ' l an armedfor(es under h s (ommand, nor re.ulate and l m t the ssuan(esof P7!3O"s to h s o%n pr 'ate army)

In h s !omment, 6o'ernor 7an (ontended that pet t oners' olated the do(tr ne on h erar(hy of (ourts %hen they f led the

nstant pet t on d re(tly n the (ourt of last resort, e'en f boththe !ourt of Appeals #!A$ and the "e. onal 7r al !ourts #"7!$

possessed (on(urrent 4ur sd (t on % th the Supreme !ourt under"ule ?5) *21+ 7h s s the only pro(edural defense ra sed byrespondent 7an) "espondents 6en) Juan(ho Saban, !ol) /u.en o!lemen, PBS=P7) Julas r m Kas m, and PBS=P7) en'en do ata.d d not f le the r respe(t 'e !omments)

On the substant 'e ssues, respondents deny that Pro(lamat on1H09 %as ssued ultra vires , as 6o'ernor 7an alle.edly a(tedpursuant to Se(t ons 1? and ;?5 of the o(al 6o'ernment !ode,%h (h empo%ers the Pro' n( al 6o'ernor to (arry out emer.en(ymeasures dur n. (alam t es and d sasters, and to (all upon theappropr ate nat onal la% enfor(ement a.en( es to suppressd sorder, r ot, la%less ' olen(e, rebell on or sed t on)*22+ 3urthermore, the Sangguniang Panlalawigan of Suluauthor ed the de(larat on of a state of emer.en(y as e' den(ed

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by "esolut on o) ;, Ser es of 2009 ssued on 81 ar(h 2009dur n. ts re.ular sess on) *28+

7he threshold ssue n the present (ase s %hether or notSe(t on ;?5, n relat on to Se(t on 1?, of the o(al 6o'ernment

!ode author es the respondent .o'ernor to de(lare a state ofemer.en(y, and eCer( se the po%ers enumerated underPro(lamat on 1H09, spe( f (ally the (ondu(t of .eneral sear(hesand se ures) Subsumed here n s the se(ondary Luest on of%hether or not the pro' n( al .o'ernor s s m larly (lothed % thauthor ty to (on'ene the !/3 under the sa d pro' s ons)

5e grant the petition%

I. Transcendental public importancewarrants a relaxation of the Doctrineof Hierarchy of Courts

e f rst d spose of respondentsF n'o(at on of the do(tr ne ofh erar(hy of (ourts %h (h alle.edly pre'ents 4ud ( al re' e% by

th s !ourt n the present (ase, ( t n. for th s spe( f (purpose, Montes v. Court of Appeals and Purok Bagong Silang

Association, nc. v. !uipco )*2;+ S mply put, the do(tr ne pro' desthat %here the ssuan(e of an eCtraord nary %r t s also % th nthe (ompeten(e of the !A or the "7!, t s n e ther of these(ourts and not n the Supreme !ourt, that the spe( f ( a(t on forthe ssuan(e of su(h %r t must be sou.ht unless spe( al and

mportant la%s are (learly and spe( f (ally set forth n thepet t on) 7he reason for th s s that th s !ourt s a (ourt of lastresort and must so rema n f t s to perform the fun(t onsass .ned to t by the !onst tut on and mmemor al trad t on) It(annot be burdened % th de( d n. (ases n the f rst nstan(e) *25+

7he sa d rule, ho%e'er, s not % thout eC(ept on) In Chave" v.P#A$A%ari, *2?+ the !ourt stated@

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Sa kabila ng pagiging akade%iko na la%ang ng %ga isyutungkol sa %ahigpit na pangangalaga &restrictive custody' at

pag%onitor ng galaw &%onitoring of %ove%ents' ngnagpepetisyon, dedesisyunan na%in ito &a' dahil sanangingibabaw na interes ng %adla na nakapaloob dito, &b'

dahil sa posibilidad na %aaaring %aulit ang pangyayari at &c'dahil kailangang %aturuan ang kapulisan tungkol dito.

7he moot and a(adem ( pr n( ple s not a ma. (al formula that(an automat (ally d ssuade the (ourts n resol' n. a (ase) !ourts% ll de( de (ases, other% se moot and a(adem (, f@ f rst, there

s a .ra'e ' olat on of the !onst tut on se(ond, the eC(ept onal(hara(ter of the s tuat on and the paramount publ ( nterest s

n'ol'ed th rd, %hen *the+ (onst tut onal ssue ra sed reLu resformulat on of (ontroll n. pr n( ples to .u de the ben(h, the bar,and the publ ( and fourth, the (ase s (apable of repet t on yete'ad n. re' e%)

affectthe public interest, involving as they >o the people?s basicrights to free>om of e@pression, of assembly an> of the

press% Moreover, the Court has the >uty to formulategui>ing an> controlling constitutional precepts, >octrinesor rules% t has the symbolic function of e>ucating thebench an> the bar, an> in the present petitions, themilitary an> the police, on the e@tent of the protectiongiven by constitutional guarantees% An> lastly,respon>ents conteste> actions are capable of repetition%Certainly, the petitions are sub ect to u>icial revieB%

Evi>ently, the triple reasons 5e a>vance> at the start of6ur ruling are ustifie> un>er the foregoing e@ceptions%Every ba>, unusual inci>ent Bhere police officers figure ingenerates public interest an> people Batch Bhat Bill be>one or not >one to them% 3ac of >isciplinary steps ta enagainst them ero>e public confi>ence in the police

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institution% As petitioners themselves assert, therestrictive custo>y of policemen un>er investigation is ane@isting practice, hence, the issue is boun> to crop upevery noB an> then% The matter is capable of repetitionor susceptible of recurrence% t better be resolve> noB

for the e>ucation an> gui>ance of all concerne> )*81+ #/mphas s suppl ed$

Gen(e, the nstant pet t on s . 'en due (ourse, mpressed as ts % th trans(endental publ ( mportan(e)

II. Only the President is vested with calling out powers! as the

commander in chief of the "epublic

i. One executive! one commander in chief As early as (illena v. Secretary of Inter or, *82+ t has already beenestabl shed that there s one repos tory of eCe(ut 'e po%ers,and that s the Pres dent of the "epubl () 7h s means that %henSe(t on 1, Art (le II of the !onst tut on spea&s of eCe(ut 'epo%er, t s .ranted to the Pres dent and no one else) *88+ Asemphas ed by Just (e Jose P) aurel, n h s ponencia n (illena @

th referen(e to the /Ce(ut 'e :epartment of the .o'ernment,there s one purpose %h (h s (rystalH(lear and s read ly ' s ble% thout the pro4e(t on of 4ud ( al sear(hl .ht, and that s theestabl shment of a s n.le, not plural, /Ce(ut 'e) 7he f rst se(t onof Art (le II of the !onst tut on, deal n. % th the /Ce(ut 'e

:epartment, be. ns % th the enun( at on of the pr n( ple that 7h s means that the Pres dent of the Ph l pp nes sthe /Ce(ut 'e of the 6o'ernment of the Ph l pp nes, and noother) *8;+

!orollar ly, t s only the Pres dent, as /Ce(ut 'e, %ho sauthor ed to eCer( se emer.en(y po%ers as pro' ded under

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Se(t on 28, Art (le I, of the !onst tut on, as %ell as %hatbe(ame &no%n as the (all n.Hout po%ers under Se(t on D,Art (le II thereof)

ii. The exceptional character of

Commander in Chief powersdictate that they are exercised by one president

Spr n. n. from the %ellHentren(hed (onst tut onal pre(ept ofOne Pres dent s the not on that there are (erta n a(ts %h (h, bythe r 'ery nature, may only be performed by the pres dent asthe Gead of the State) One of these a(ts or prero.at 'es s thebundle of !ommanderH nH!h ef po%ers to %h (h the po%ers (onst tutes a port on) 7he Pres dentFs /mer.en(yPo%ers, on the other hand, s balan(ed only by the le. slat 'ea(t of !on.ress, as embod ed n the se(ond para.raph ofSe(t on 28, Art (le ? of the !onst tut on@

Art (le ?, Se( 28#2$) In t mes of %ar or other nat onal

emer.en(y, the !on.ress may, by la%, author e the Pres dent,for a l m ted per od and sub4e(t to su(h restr (t ons as t maypres(r be, to eCer( se po%ers ne(essary and proper to (arry outa de(lared nat onal pol (y) =nless sooner % thdra%n byresolut on of the !on.ress, su(h po%ers shall (ease upon theneCt ad4ournment thereof) *85+

Art (le D, Se( 1 ) 7he Pres dent shall be the !ommanderH nH

!h ef of all armed for(es of the Ph l pp nes and %hene'er tbe(omes ne(essary, he may (all out su(h armed for(es topre'ent or suppress la%less ' olen(e, n'as on or rebell on) In(ase of n'as on or rebell on, %hen the publ ( safety reLu res t,he may, for a per od not eC(eed n. s Cty days, suspend thepr ' le.e of the %r t of habeas corpus or pla(e the Ph l pp nes orany part thereof under mart al la%) th n fortyHe .ht hours

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from the pro(lamat on of mart al la% or the suspens on of thepr ' le.e of the %r t of habeas corpus , the Pres dent shall subm ta report n person or n %r t n. to the !on.ress) 7he !on.ress,'ot n. 4o ntly, by a 'ote of at least a ma4or ty of all ts embers

n re.ular or spe( al sess on, may re'o&e su(h pro(lamat on or

suspens on, %h (h re'o(at on shall not be set as de by thePres dent) =pon the n t at 'e of the Pres dent, the !on.ressmay, n the same manner, eCtend su(h pro(lamat on orsuspens on for a per od to be determ ned by the !on.ress, f the

n'as on or rebell on shall pers st and publ ( safety reLu res t)

7he !on.ress, f not n sess on, shall, % th n t%entyHfour hoursfollo% n. su(h pro(lamat on or suspens on, (on'ene n

a((ordan(e % th ts rules % thout need of a (all)*8?+

7he po%er to de(lare a state of mart al la% s sub4e(t to theSupreme !ourtFs author ty to re' e% the fa(tual bas sthereof) *8D+ y (onst tut onal f at, the (all n.Hout po%ers, %h (h

s of lesser .ra' ty than the po%er to de(lare mart al la%, sbesto%ed upon the Pres dent alone) As noted n (illena ,

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su(h eLu 'alent pro' s on deal n. % th the re'o(at on or re' e%of the Pres dentFs a(t on to (all out the armed for(es) 7hed st n(t on pla(es the (all n. out po%er n a d fferent (ate.oryfrom the po%er to de(lare mart al la% and the po%er to suspendthe pr ' le.e of the %r t of habeas corpus, other% se, the framers

of the !onst tut on %ould ha'e s mply lumped to.ether the threepo%ers and pro' ded for the r re'o(at on and re' e% % thout anyLual f (at on)*;;+

7hat the po%er to (all upon the armed for(es s d s(ret onary onthe pres dent s (lear from the del berat on of the !onst tut onal!omm ss on@

3") /" AS) It % ll not ma&e any d fferen(e) I may addthat there is a gra>uate> poBer of the Presi>ent asComman>er-in-Chief% 9irst, he can call out such Arme>9orces as may be necessary to suppress laBless violencethen he can suspen> the privilege of the Brit of habeascorpus! then he can impose martial laB% This is agra>uate> se=uence%

hen he 4ud.es that t s ne(essary to mpose mart al la% orsuspend the pr ' le.e of the %r t of habeas corpus , h s 4ud.ment

s sub4e(t to re' e%) e are ma& n. t sub4e(t to re' e% by theSupreme !ourt and sub4e(t to (on(urren(e by the at onalAssembly) ut %hen he eCer( ses th s lesser po%er of (all n. onthe Armed 3or(es, %hen he says t s ne(essary, t s my op n onthat h s 4ud.ment (annot be re' e%ed by anybody)

C C C C C C C C C") "/6A A:O) 7hat does not reLu re any (on(urren(e by the

le. slature nor s t sub4e(t to 4ud ( al re' e%)

7he reason for the d fferen(e n the treatment of theaforement oned po%ers h .hl .hts the ntent to .rant thePres dent the % dest lee%ay and broadest d s(ret on n us n. the

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po%er to (all out be(ause t s (ons dered as the lesser and moreben .n po%er (ompared to the po%er to suspend the pr ' le.e of the %r t of habeas corpus and the po%er to mpose mart al la%,both of %h (h n'ol'e the (urta lment and suppress on of (erta nbas ( ( ' l r .hts and nd ' dual freedoms, and thus ne(ess tat n.

safe.uards by !on.ress and re' e% by th s !ourt)@ @ @ Thus, it is the unclou>e> intent of the Constitutionto vest upon the Presi>ent, as Comman>er-in-Chief of theArme> 9orces, full >iscretion to call forth the militaryBhen in his u>gment it is necessary to >o so in or>er toprevent or suppress laBless violence, invasion orrebellion% *;5+ #/mphas s Suppl ed$

In the more re(ent (ase of Constantino, *r. v. Cuisia, *;?+ the!ourt (hara(ter ed these po%ers as eC(lus 'e to the Pres dent,pre( sely be(ause they are of eC(ept onal mport@

7hese d st n(t ons hold true to th s day as they rema n embod edn our fundamental la%) 7here are (erta n pres dent al po%ers

%h (h ar se out of eC(ept onal ( r(umstan(es, and f eCer( sed,

%ould n'ol'e the suspens on of fundamental freedoms, or atleast (all for the superseden(e of eCe(ut 'e prero.at 'es o'erthose eCer( sed by (oHeLual bran(hes of .o'ernment) 7hede(larat on of mart al la%, the suspens on of the %r t of habeas(orpus, and the eCer( se of the pardon n. po%er,not% thstand n. the 4ud ( al determ nat on of .u lt of thea((used, all fall % th n th s spe( al (lass that demands theeC(lus 'e eCer( se by the Pres dent of the (onst tut onally 'estedpo%er) 7he l st s by no means eC(lus 'e, but there must be asho% n. that the eCe(ut 'e po%er n Luest on s ofs m lar gravitas and eC(ept onal mport) *;D+

In add t on to be n. the (ommanderH nH(h ef of the armedfor(es, the Pres dent also a(ts as the leader of the (ountryFspol (e for(es, under the mandate of Se(t on 1D, Art (le II of the!onst tut on, %h (h pro' des that,

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(ontrol of all the eCe(ut 'e departments, bureaus, and off (es)Ge shall ensure that the la%s be fa thfully eCe(uted)> :ur n. thedel berat ons of the !onst tut onal !omm ss on on the fram n. of th s pro' s on, 3r) ernas defended the retent on of the %ord

employ n. the same rat onale of s n.ular ty of the

off (e of the pres dent, as the only /Ce(ut 'e under thepres dent al form of .o'ernment) *; +

"e.ard n. the (ountryFs pol (e for(e, Se(t on ?, Art (le M I ofthe !onst tut on states that@ *;9+

A lo(al (h ef eCe(ut 'e, su(h as the pro' n( al .o'ernor,eCer( ses operat onal super' s on o'er the pol (e, *50+ and mayeCer( se (ontrol only n dayHtoHday operat ons, vi" @

r) at ' dad@ "y e@perience, it is not a>visable to provi>eeither in our Constitution or by laB full control of thepolice by the local chief e@ecutive an> local e@ecutives,the mayors% "y our e@perience, this has spaBne>Barlor>ism, bossism an> sanctuaries for vices an>abuses ) If the nat onal .o'ernment does not ha'e a me(han smto super' se these 1,500 le.ally, te(hn (ally separate pol (efor(es, plus ?1 ( ty pol (e for(es, fra.mented pol (e system, %e% ll ha'e a lot of d ff (ulty n present n. a modern profess onalpol (e for(e) So that a certain amount of supervision an>control Bill have to be e@ercise> by the nationalgovernment%

9or e@ample, if a local government, a toBn cannot han>leits peace an> or>er problems or police problems, such as

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riots, conflagrations or organiDe> crime, the nationalgovernment may come in, especially if re=ueste> by thelocal e@ecutives% 2n>er that situation, if they come inun>er such an e@traor>inary situation, they Bill be incontrol% ut f the dayHtoHday bus ness of pol (e n'est .at on of

(r me, (r me pre'ent on, a(t ' t es, traff ( (ontrol, s all lod.ed nthe mayors, and f they are n (omplete operat onal (ontrol ofthe dayHtoHday bus ness of pol (e ser' (e, %hat the nat onal.o'ernment %ould (ontrol %ould be the adm n strat 'e aspe(t)

C C C C C C C C Cr) de los "eyes@ so the operat onal (ontrol on a dayHtoHday

bas s, mean n., the usual dut es be n. performed by the

ord nary pol (emen, % ll be under the super' s on of the lo(aleCe(ut 'esN

r) at ' dad@ es, adam Pres dent)

C C C C C C C C CMr% >e los &eyes: "ut in e@ceptional cases, even theoperational control can be ta en over by the National

Police CommissionMr% Nativi>a>: f the situation is beyon> the capacity ofthe local governments% *51+ #/mphases suppl ed$

3urthermore a((ord n. to the framers, t s st ll the Pres dent%ho s author ed to eCer( se super' s on and (ontrol o'er thepol (e, throu.h the at onal Pol (e !omm ss on@

r) "odr .o@ Just a fe% Luest ons) 7he Pres dent of thePh l pp nes s the !ommanderH nH!h ef of all the armed for(es)

r) at ' dad@ es, adam Pres dent)

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r) "odr .o@ S n(e the nat onal pol (e s not nte.rated % th thearmed for(es, I do not suppose they (ome under the!ommanderH nH!h ef po%ers of the Pres dent of the Ph l pp nes)

r) at ' dad@ 7hey do, adam Pres dent) y la%, they areunder the super' s on and (ontrol of the Pres dent of thePh l pp nes)

r) "odr .o@ es, but the Pres dent s not the !ommanderH nH!h ef of the nat onal pol (e)

r) at ' dad@ Ge s the Pres dent)

r) "odr .o@ es, the /Ce(ut 'e) ut they do not (ome underthat spe( f ( pro' s on that the Pres dent s the !ommanderH nH!h ef of all the armed for(es)

r) at ' dad@ o, not under the !ommanderH nH!h ef pro' s on)

r) "odr .o@ 7here are t%o other po%ers of the Pres dent) 7hePres dent has (ontrol o'er m n str es, bureaus and off (es, andsuper' s on o'er lo(al .o'ernments) =nder %h (h does the pol (e

fall, under (ontrol or under super' s onN

r) at ' dad@ oth, adam Pres dent)

r) "odr .o@ !ontrol and super' s on)

r) at ' dad@ es, n fa(t, the at onal Pol (e !omm ss on sunder the Off (e of the Pres dent) *52+

In the discussions of the Constitutional Commissionregarding the above provision it is clear that the framersnever intended for local chief executives to exerciseunbridled control over the police in emergency

situations. 7h s s % thout pre4ud (e to the r author ty o'erpol (e un ts n the r 4ur sd (t on as pro' ded by la%, and the rprero.at 'e to see& ass stan(e from the pol (e n day to day

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s tuat ons, as (ontemplated by the !onst tut onal !omm ss on)ut as a ( ' l an a.en(y of the .o'ernment, the pol (e, throu.h

the APO !O , properly (omes % th n, and s sub4e(t to, theeCer( se by the Pres dent of the po%er of eCe(ut 'e (ontrol) *58+

iii. The provincial governor doesnot possess the same calling out powers as the President

$iven the foregoing, respon>ent provincial governoris not en>oBe> Bith the poBer to call upon the arme>forces at his oBn bi>>ing% n issuing the assaile>proclamation, $overnor Tan e@cee>e> his authority Bhenhe >eclare> a state of emergency an> calle> upon theArme> 9orces, the police, an> his oBn Civilian Emergency9orce% The calling-out poBers contemplate> un>er theConstitution is exclusive to the Presi>ent ) An eCer( se byanother off ( al, e'en f he s the lo(al (h ef eCe(ut 'e, s ultravires , and may not be 4ust f ed by the n'o(at on of Se(t on ;?5of the o(al 6o'ernment !ode, as % ll be d s(ussed

subseLuently)

"espondents, ho%e'er, 4ust fy th s stan(e by stat n. thatno%here n the sem nal (ase of +avid v. Arroyo , %h (h dealtsLuarely % th the ssue of the de(larat on of a state ofemer.en(y, does t l m t the sa d author ty to the Pres dentalone) "espondents (ontend that the rul n. n +avid eCpresslyl m ts the author ty to de(lare a national emer.en(y, a(ond t on %h (h (o'ers the ent re (ountry, and does not n(ludeemer.en(y s tuat ons n lo(al .o'ernment un ts) *5;+ 7h s (la m sbel ed by the (lear ntent of the framers that n all s tuat ons

n'ol' n. threats to se(ur ty, su(h as la%less ' olen(e, n'as onor rebell on, e'en n lo(al ed areas, t s st ll the Pres dent %hopossesses the sole author ty to eCer( se (all n.Hout po%ers) Asrefle(ted n the Journal of the !onst tut onal !omm ss on@

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7hereafter, r) Pad lla proposed on l ne 29 to nsert the phraseO" P= I! :ISO":/" n l eu of < n'as on or rebell on)> r)Sumulon. stated that the (omm ttee (ould not a((ept theamendment be(ause under the f rst se(t on of Se(t on 15, thePres dent may (all out and ma&e use of the armed for(es to

pre'ent or suppress not only la%less ' olen(e but e'en n'as onor rebell on % thout de(lar n. mart al la%) Ge obser'ed that bydelet n. < n'as on or rebell on> and subst tut n. P= I!:ISO":/", the Pres dent %ould ha'e to de(lare mart al la%before he (an ma&e use of the armed for(es to pre'ent orsuppress la%less n'as on or rebell on)

Mr% Pa>illa, in reply thereto, state> that the first sentence

contemplates a lighter situation Bhere there is somelaBless violence in a small portion of the country orpublic >isor>er in another at Bhich times, the arme>forces can be calle> to prevent or suppress theseinci>ents% He note> that the Comman>er-in-Chief can >oso in a minor >egree but he can also e@ercise suchpoBers shoul> the situation Borsen ) 7he %ords < n'as on orrebell on> to be el m nated on l ne 1; are (o'ered by thefollo% n. senten(e %h (h pro' des for < n'as on or rebell on)> Gema nta ned that the proposed amendment does not mean thatunder su(h ( r(umstan(es, the Pres dent (annot (all on thearmed for(es to pre'ent or suppress the same) *55+ #/mphas ssuppl ed$

III. #ection $%& of the 'ocal (overnment Code cannot be invo)ed to *ustify the powersenumerated under Proclamation + ,-

"espondent .o'ernor (hara(ter ed the & dnapp n. of the threeI!"! %or&ers as a terror st ( a(t, and used th s n( dent to

4ust fy the eCer( se of the po%ers enumerated underPro(lamat on 1H09) *5?+ Ge n'o&es Se(t on ;?5, n relat on toSe(t on 1?, of the o(al 6o'ernment !ode, %h (h purportedly

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allo%s the .o'ernor to (arry out emer.en(y measures and (allupon the appropr ate nat onal la% enfor(ement a.en( es forass stan(e) ut a (loser loo& at the sa d pro(lamat on sho%s thatthere s no pro' s on n the o(al 6o'ernment !ode nor n anyla% on %h (h the broad and un%arranted po%ers .ranted to the

6o'ernor may be based)

Pet t oners ( te the mplementat on of *5D+ as be n. ' olat 'e of the (onst tut onalpros(r pt on on .eneral sear(h %arrants and .eneral se ures)Pet t oners r .htly assert that th s alone %ould be suff ( ent torender the pro(lamat on 'o d, as .eneral sear(hes and se uresare pros(r bed, for be n. ' olat 'e of the r .hts enshr ned n the

ll of " .hts, part (ularly@

7he r .ht of the people to be se(ure n the r persons, houses,papers, and effe(ts a.a nst unreasonable sear(hes and se uresof %hate'er nature and for any purpose shall be n' olable, andno sear(h %arrant or %arrant of arrest shall ssue eC(ept upon

probable (ause to be determ ned personally by the 4ud.e aftereCam nat on under oath or aff rmat on of the (ompla nant andthe % tnesses he may produ(e, and part (ularly des(r b n. thepla(e to be sear(hed and the persons or th n.s to be se ed) *5 +

In fa(t, respondent .o'ernor has arro.ated unto h mself po%erseC(eed n. e'en the mart al la% po%ers of the Pres dent,be(ause as the !onst tut on tself de(lares, *59+

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e f nd, and so hold, that there s noth n. n the o(al6o'ernment !ode %h (h 4ust f es the a(ts san(t oned under thesa d Pro(lamat on) ot e'en Se(t on ;?5 of the sa d !ode, nrelat on to Se(t on 1?, %h (h states@

Section FG % he Chief #-ecutive Powers, +uties, /unctions,and Co%pensation )

C C C C C C C C C#b$ 3or eff ( ent, effe(t 'e and e(onom (al .o'ernan(e thepurpose of %h (h s the .eneral %elfare of the pro' n(e and ts

nhab tants pursuant to Se(t on 1? of th s !ode, the pro' n( al.o'ernor shall@

#1$ /Cer( se .eneral super' s on and (ontrol o'er all pro.rams,pro4e(ts, ser' (es, and a(t ' t es of the pro' n( al .o'ernment,and n th s (onne(t on, shall@C C C C C C C C C

#' $Carry out such emergency measures as may benecessary >uring an> in the aftermath of man-ma>e an>

natural >isasters an> calamities#2$ /nfor(e all la%s and ord nan(es relat 'e to the .o'ernan(e of the pro' n(e and the eCer( se of the appropr ate (orporatepo%ers pro' ded for under Se(t on 22 of th s !ode, mplementall appro'ed pol ( es, pro.rams, pro4e(ts, ser' (es and a(t ' t esof the pro' n(e and, n add t on to the fore.o n., shall@

C C C C C C C C C

#' $ !all upon the appropr ate nat onal la% enfor(ementa.en( es to suppress d sorder, r ot, la%less ' olen(e, rebell on orsed t on or to apprehend ' olators of the la% %hen publ (

nterest so reLu res and the pol (e for(es of the (omponent ( tyor mun ( pal ty %here the d sorder or ' olat on s happen n. are

nadeLuate to (ope % th the s tuat on or the ' olators)

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Section 'G ) 0eneral Welfare ) /'ery lo(al .o'ernment un tshall eCer( se the po%ers eCpressly .ranted, those ne(essar ly

mpl ed therefrom, as %ell as po%ers ne(essary, appropr ate, orn( dental for ts eff ( ent and effe(t 'e .o'ernan(e, and those

%h (h are essent al to the promot on of the .eneral %elfare)

th n the r respe(t 'e terr tor al 4ur sd (t ons, lo(al .o'ernmentun ts shall ensure and support, amon. other th n.s, thepreser'at on and enr (hment of (ulture, promote health andsafety, enhan(e the r .ht of the people to a balan(ed e(olo.y,en(oura.e and support the de'elopment of appropr ate and selfHrel ant s( ent f ( and te(hnolo. (al (apab l t es, mpro'e publ (morals, enhan(e e(onom ( prosper ty and so( al 4ust (e,promote full employment amon. the r res dents, ma nta n pea(eand order, and preser'e the (omfort and (on'en en(e of the r

nhab tants) #/mphases suppl ed$

"espondents (annot rely on para.raph 1, subpara.raph #' $ ofArt (le ;?5 abo'e, as the sa d pro' s on eCpressly refers to(alam t es and d sasters, %hether manHmade or natural) 7he.o'ernor, as lo(al (h ef eCe(ut 'e of the pro' n(e, s (erta nlyempo%ered to ena(t and mplement emer.en(y measures

dur n. these o((urren(es) ut the & dnapp n. n( dent n the(ase at bar (annot be (ons dered as a (alam ty or a d saster)"espondents (annot f nd any le.al moor n. under th s pro' s onto 4ust fy the r a(t ons)

Para.raph 2, subpara.raph #' $ of the same pro' s on s eLuallynappl (able for t%o reasons) /irst , the Armed 3or(es of the

Ph l pp nes does not fall under the (ate.ory of a to %h (h the at onal Pol (e !omm ss on# APO !O $ and ts departments belon.) Its mandate s touphold the so'ere .nty of the Ph l pp nes, support the!onst tut on, and defend the "epubl ( a.a nst all enem es,fore .n and domest () Its a m s also to se(ure the nte.r ty ofthe nat onal terr tory) *?0+ Second, there %as no e' den(e or e'enan alle.at on on re(ord that the lo(al pol (e for(es %ere

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nadeLuate to (ope % th the s tuat on or apprehend the' olators) If they %ere nadeLuate, the re(ourse of the pro' n( al.o'ernor %as to as& the ass stan(e of the Se(retary of Inter orand o(al 6o'ernment, or su(h other author ed off ( als, for theass stan(e of nat onal la% enfor(ement a.en( es)

7he o(al 6o'ernment !ode does not n'ol'e the d m nut on of(entral po%ers nherently 'ested n the at onal 6o'ernment,espe( ally not the prero.at 'es solely .ranted by the!onst tut on to the Pres dent n matters of se(ur ty and defense)

7he ntent beh nd the po%ers .ranted to lo(al .o'ernment un tss f s(al, e(onom (, and adm n strat 'e n nature) 7he !ode s

(on(erned only % th po%ers that %ould ma&e the del 'ery ofbas ( ser' (es more effe(t 'e to the (onst tuents, *?1+ and shouldnot be unduly stret(hed to (onfer (all n.Hout po%ers on lo(aleCe(ut 'es)

In the sponsorsh p remar&s for "epubl ( A(t D1?0, t %as statedthat the de'olut on of po%ers s a step to%ards the autonomy of

lo(al .o'ernment un ts # 6=s$, and s a(tually an eCper ment%hose su((ess hea' ly rel es on the po%er of taCat on of the6=s) 7he underp nn n.s of the !ode (an be found n Se(t on 5,

Art (le II of the 19D8 !onst tut on, %h (h allo%ed 6=s to (reatethe r o%n sour(es of re'enue) *?2+ :ur n. the nterpellat on madeby r) 7 rol addressed to r) de Pedro, the latter emphas edthat

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process because their functions are not inherent in local government units.1 *?8+

I2. Provincial governor is not authori0ed to convene C34

Pursuant to the nat onal pol (y to establ sh one pol (e for(e, theor.an at on of pr 'ate ( t en arm es s pros(r bed) Se(t on 2;of Art (le M III of the !onst tut on mandates that@

Pr 'ate arm es and other armed .roups not re(o.n ed by duly(onst tuted author ty shall be d smantled) All param l tary for(es

n(lud n. ! ' l an Gome :efense 3or(es #!G:3$ not (ons stent% th the ( t en armed for(e establ shed n th s !onst tut on,shall be d ssol'ed or, %here appropr ate, (on'erted nto there.ular for(e)

Add t onally, Se(t on 21of Art (le MI states that,

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in>epen>ent private army for many regional Barlor>s%An> at the same time, this thin has been the thrust,the intent of many of the >iscussions an> ob ections tothe paramilitary units an> the arme> groups%

") PA:I A@ y proposal (o'ers t%o parts@ the pr 'ate arm esof pol t (al %arlords and other armed tor(es not re(o.n ed by(onst tuted author ty %h (h shall be d smantled and d ssol'ed)In my tr ps to the pro' n(es, I heard of many abuses (omm ttedby the !G:3 #! ' l an Gome :efense 3or(es$, spe( ally n/s(alante, e.ros O(( dental) ut I do not &no% %hether apart (ular !G:3 s appro'ed or author ed by (ompetentauthor ty) If t s not author ed, then the !G:3 % ll ha'e to be

d smantled) If some !G:3s, say n other pro' n(es, areauthor ed by (onst tuted author ty, by the Armed 3or(es of thePh l pp nes, throu.h the !h ef of Staff or the n ster of at onal:efense, f they are re(o.n ed and author ed, then they % llnot be d smantled) ut I (annot . 'e a (ate.or (al ans%er to anyspe( f ( !G:3 un t, only the pr n( ple that f they are armedfor(es %h (h are not author ed, then they should bed smantled) *?;+ #/mphas s suppl ed$

7hus, % th the d s(uss ons n the !onst tut onal !omm ss on as.u de, the (reat on of the ! ' l an /mer.en(y 3or(e #!/3$ n thepresent (ase, s also n'al d)

5HE&E96&E , the nstant pet t on ts 6"A 7/:) Jud.ment srendered (ommand n. respondents to des st from furtherpro(eed n.s n mplement n. Pro(lamat on o) 1, Ser es of2009, and ts Implement n. 6u del nes) 7he sa d pro(lamat onand .u del nes are hereby de(lared N233 and 86 7 for ha' n.been ssued n .ra'e abuse of d s(ret on, amount n. to la(& oreC(ess of 4ur sd (t on)

S6 6&7E&E7%

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Carpio, (elasco, *r., 1eonardo$+e Castro, Brion, Peralta, +elCastillo, (illara%a, *r., Pere", Mendo"a, 2eyes, and Perlas$Bernabe, **., (on(ur)Bersa%in , and Abad, **. , on lea'e)

*1+ Pet t on for !ert orar and Prob h t on, rollo, p) )

*2+ IF F. ) ast ' s ted 11 September 2011)

*?+ 2ollo , pp) 2;2H 2;;)

*D+ Id) at 2;2)

* +

emorandum of =nderstand n., p) 2 of 8 rollo , p) 2;8)*9+ Supra note 5)

*10+ Pet t on for !ert orar and Proh b t on, rollo , p) 9)

*11+ Supra note 5)

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8/11/2019 GR No. 187298-July 3, 2012 Case 21

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*12+ Supra note 10)

*18+ Pet t on for !ert orar and Proh b t on, rollo , pp) 9H10)

*1;+ Id)

*15+ Id) at H9)

*1?+ Id) at 9)

*1D+ Aff da' t of the Apprehend n. Off (er, atta(hed as AnneC torespondentsF !omment, d) at 2;5)

*1 + Atta(hed as AnneC to Pet t on, d) at ?9HD8)

*19+ Id) at 8H ??)

*20+ Id) at 1;)

*21+

Id) at 11 )*22+ !omment, pp) DH10 d) at 128H12?)

*28+ Atta(hed as AnneC A to the !omment, d) at 2;DH2;9)

*2;+ "espe(t 'ely, 6)") o) 1;8D9D, ; ay 200?, ; 9 S!"A ;82,and 6)") o) 185092, ; ay 200?, ; 9 S!"A 8 2)

*25+ Montes v. CA, supra note 2;)

*2?+ ;88 Ph l) 50? #2002$)

*2D+ Id) at 52;)

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*2 + In relat on to Se(t ons 1 and 2, "ule ?5 of the "e' sed "ulesof !ourt, par) 2, Se() ; thereof states@