statutory construction | ocampo, et. al. v. the secretary of justice, et. al. (g.r. no. l-7910)

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RECENT DOCUMENTS Ocampo et el. v. The Secretary of Justice et el. G.R. No. L-7910 (1955)* Excerpts from the minutes of Jan. 18, 1955 In Ocampo et al. vs. The Secretary of Justice et a1., G. R. No. L-7910, the petition was denied, without costs, due to insufficient votes to in- validate section 3 of Republic Act No. 1186. Chief Justice Paras and Justices Padilla, Reyes (A), and Labrador voted to uphold that particular section; Justices Pablo, Bengzon, Montemayor, Jugo, Bautista, Concepcion and Reyes, J.B.L., believe it is unconstitutional. The opinions follow: PARAS, C.j.: Under the Judiciary Act of 1948, Republic Act No. 296. the judicial function in Courts of First Instance was vested in District Judges, Judges- at-Large and Cadastral Judges. Sixteen Judicial Districts were consti- tuted, and seventy-four District Judges were provided and distributed thereover in the proportion fixed in the Act. Aside from the seventy- four District Judges, section 53 of the Act provided for the appointment of "eighteen Judges-at-Large and fifteen Cadastral Judges who shall not be assigned permanently to any judicial district and who shall render duty in such district or province as may, from time to time, be desig- nated by the Department Head." The petitioners were duly appointed and. had qualified under said section 53, four as Judges-at-Large and six as Cadastral Judges. Under Republic Act No. 1186, which took effect on June 19, 1954, several provisions of the Judiciary Act of 1948 were amended. Now, the judicial function in the Court of First Instance is vested in District Judges; and although the number of Judicial Districts is maintained, the number of District Judges has been increased to 114. Section 3 of Republic Act No. 1186, provides that "all the existing positions of Judges- at-Large and Cadastral Judges are abolished, and secticn fifty-three of Republic Act Numbered Two Hundred and Ninety-six is hereby re- pealed." Shortly after the effectivity of Republic Act No. 1186, the Secretary of Justice informed the petitioners that they had ceased as Judges-at-Large and Cadastral Judges. The petitioners have filed the present petition for declaratory relief and/or mandamus, for a judicial declaration that section 3 of Republic Act No. 1186 is unconstitutional and void, that the respective positions and offices of the petitioners under * Motion for reconsideration subsequently dismissed in a resolution of the Supreme Court of February 16, 1955.

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In this case, the petition was denied, without costs, due to insufficient votes to invalidate section 3 Republic Act No. 1186. Chief Justice Paras and Justices Padilla, Reyes (A), and Labrador voted to uphold the particular section.Justices Pablo, Bengzon, Montemayor, Jugo, Bautista, Concepcion and Reyes, J.B.L., believe it is unconstitutional.

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  • RECENT DOCUMENTS

    Ocampo et el. v. The Secretary of Justice et el. G.R. No. L-7910 (1955)*

    Excerpts from the minutes of Jan. 18, 1955

    In Ocampo et al. vs. The Secretary of Justice et a1., G. R. No. L-7910,the petition was denied, without costs, due to insufficient votes to in-validate section 3 of Republic Act No. 1186.

    Chief Justice Paras and Justices Padilla, Reyes (A), and Labradorvoted to uphold that particular section;

    Justices Pablo, Bengzon, Montemayor, Jugo, Bautista, Concepcionand Reyes, J.B.L., believe it is unconstitutional.

    The opinions follow:

    PARAS, C.j.:Under the Judiciary Act of 1948, Republic Act No. 296. the judicial

    function in Courts of First Instance was vested in District Judges, Judges-at-Large and Cadastral Judges. Sixteen Judicial Districts were consti-tuted, and seventy-four District Judges were provided and distributedthereover in the proportion fixed in the Act. Aside from the seventy-four District Judges, section 53 of the Act provided for the appointmentof "eighteen Judges-at-Large and fifteen Cadastral Judges who shall notbe assigned permanently to any judicial district and who shall renderduty in such district or province as may, from time to time, be desig-nated by the Department Head." The petitioners were duly appointedand. had qualified under said section 53, four as Judges-at-Large andsix as Cadastral Judges.

    Under Republic Act No. 1186, which took effect on June 19, 1954,several provisions of the Judiciary Act of 1948 were amended. Now,the judicial function in the Court of First Instance is vested in DistrictJudges; and although the number of Judicial Districts is maintained,the number of District Judges has been increased to 114. Section 3of Republic Act No. 1186, provides that "all the existing positions of Judges-at-Large and Cadastral Judges are abolished, and secticn fifty-three ofRepublic Act Numbered Two Hundred and Ninety-six is hereby re-pealed." Shortly after the effectivity of Republic Act No. 1186, theSecretary of Justice informed the petitioners that they had ceased asJudges-at-Large and Cadastral Judges. The petitioners have filed thepresent petition for declaratory relief and/or mandamus, for a judicialdeclaration that section 3 of Republic Act No. 1186 is unconstitutionaland void, that the respective positions and offices of the petitioners under

    *Motion for reconsideration subsequently dismissed in a resolution of theSupreme Court of February 16, 1955.

  • 768 PHILIPPINE LAW JOURNALthe Judiciary Act of 1948 still exists, and that they are entitled to exer-cise the powers and functions. of said offices; and for a directive againstthe Secretary of Justice to permit the petitioners to continue in the exer-cise of said powers and functions, and against the Chief AccountingOfficer and Judicial Officer of the Department of Justice to pay the pe-titioners their corresponding compensation beginning June 20, 1954.

    Section 1 of Article VIII of the Constitution provides that "thejudicial power shall be vested in the Supreme Court and in such in-ferior courts as may be established by law," and section 9 of the sameArticle provides that "the Members of the Supreme Court and all judgesof inferior courts shall hold office during good behavior, until they reachthe age of 70 years, or become incapacitated to discharge the dutiesof their office." The power of Congress under section 1 to organize,reorganize and even abolish courts inferior to the Supreme Court, is con-ceded; and the contention advanced on behalf of the petitioners is merelythat such power is restricted by and may be reconciled with section 9in the sense that they should be allowed to continue holding theiroffices during good behavior, until they reach the age of seventy yearsor become incapacitated, notwithstanding the reorganization effected un-der Republic Act No. 1186 and the express abolition of their positionsby section 3 thereof.

    In this case we have to assume, both from the explanatory note otthe basic Bill and from the sponsorship speeches, that the main objectiveof Republic Act No. 1186 is to vest the judicial function of Courts ofFirst Instance in District Judges, eliminating Judges-at-Large and Cadas-tral Judges, the creation of whose positions (by Republic Act No. 296,section 53), as Mr. Justice Padilla says in a separate opinion, offendsagainst the constitutional mandate that no judge appointed for a parti-cular district shall be transferred to another district without the ap-proval of the Supreme Court. For under said Republic Act No. 296,those judges could be assigned by the Secretary of Justice to any Judi-cial District,-a practice undoubtedly allowing, if it had not alreadyallowed, the designation of any of them to try specific cases with per-haps indicated results. Indeed, the present administration is to be com-mended for thus totally doing away with the system of "rigodon dejueces", which under the former law it could have maintained to itsobvious advantage. It is very significant that not a single District Judgehas been ceased out. We cannot accept the insinuation that the peti-tioners have been purposely removed or legislated out, because the iso-lated personal opinion expressed by one or two members of Congressthat undesirable judges must be weeded out, is not controlling and, asalready stated, all positions of Judges-at-Large and Cadastral Judges,and not merely those held by the petitioners, were abolished. If peti-titioners were not.: after the abolition of their posts, retained in the judi-ciary, like the others by giving them appointment as District Judges,

  • RECENT DOCUMENTS 769

    which involves a promotion to positions of higher category, that is notattributable to Republic Act No. 1186, for petitioners are in fact casual-ties of the legitimate exercise by the President of his prerogative ap-pointment. Moreover, if the petitioners were intentionally ceased out forbeing "undesirable", no provision for the payment of any gratuity wouldhave been provided, because removal for cause is never rewarded.

    It is argued for the petitioners that Republic Act No. 1186 has notabolished any Court of First Instance and, on the contrary, it has in-creased the number of District Judges. This is followed by the reminderthat in American States where the legislative power to abolish a judge-ship was sustained, the corresponding court was also abolished. The flawof this argument lies in the fact that none of the petitioners was aDistrict Judge presiding over a District Court, and they were all onlyoccupying the positions of either Judge-at-Large or Cadastral Judge invirtue of section 53 of the Judiciary Act of 1948, which positions wereeP. abolished and which section wal>. repealed expressly by RepublicAct No. 1186; hence it was no longer necessary to abolish any court.It is not amiss to recall that the position of District Judge has hereto-furc always been considered as distinct and different from that of J udge-at-Large or Cadastral Judge, such that the latter had to look forwardto being promoted and made a District Judge under a new and differentappointment with increased compensation.

    Our considered opinion is that if it be, as it is, admitted that Con-gress can abolish courts inferior to the Supreme Court, it can do the lesserthing of reducing the number or changing the category of judges presidingover such courts. In the case of Zandueta vs. De la Costa, 66 Phil., 615.lvlr. Justice Laurel, one of the most eminent members of the Constitu-tional Convention. voiced the opinion that the legislature may abolishcourts inferior to the Supreme Court and reorganize them territorially01 otherwise, thereby necessitating new appointments and commissions.Indeed, only recently, in the case of Brillo vs. Enage, G. R. No. L-7115,we ourselves expressed the view that "el derecho de un juez de desern-pefiarlo hasta los 70 afios de edad 0 se incapacite no priva al Congresode su facultad de abolir, fusionar 0 reorganizar juzgados no constitucio-nales," Citations from other jurisdictions contain pronouncements to theeflect that "if the framers of the Constitution intended to leave it to thelegislature to establish and abolish courts as the public necessities de-manded, this was not qualified, or limited by the clause as to the judge'sterm of office," (McCulley vs. State, 53 S:W. 134); "a constitutional pro-vision that judges of a certain court shall hold their offices for five yearsmust yield to another provision that the legislature may alter or abolishthe court, and therefore the legislature may reduce the number of judgesby fixing an end to the terms of certain of them although within fiveyears after they took office. State ex rel, Kenny vs. Hudspeth (1890)59 N.J.L. 304; 37 Atl. 504, 37 Atl. 67; Nolle v. State (1698) 62 N.J.L.

  • 770 PHILIPPINE LAW JOURNAL

    533, 41 Atl, 832, affirmed in (1900) 64 N.J.L. 363, 48 Atl, 1118." (4AL.R. 216); "the legislative power to create a court carries with it thepower to abolish it. When the court is abolished any unexpired termis abolished also. The judge of such a court takes office with that en-cumbrance and knowledge. (Cherokee County v. Savage, 32 So. 2nd503); and "the legislature has the power to abolish as well as to create,to diminish as well as to increase, the number of judicial districts" (AIk-man vs. Edwards, 30 L.R.A 149, 55 Kan. 751, 42 Pac. 366).

    The reasons for the above pronouncements are, among others, thatsecurity of tenure is certainly not a personal privilege of any particularJudge (concurring opinion of Mr.' Justice Laurel in Zandueta vs. De laCosta, supra); a public officer, no matter what the department of thegovernment in which he serves is a public servant, and while the publicshould deal justly with him, his individual rights are by no means ofprimary importance (AIkman vs. Edwards, 30 L.R.A. 149, 55 Kan. 751,42 Pac. 366); the judge's right to his full term and his full salary arenot dependent alone upon his good conduct, but also upon the contin-gency that the legislature may for the public good, in ordaining andestablishing the courts, from time to time consider his office unnecessaryand abolish it (McCulley vs. State, 53 S.W. 134).

    Properly and logically speaking, the petitioners were not removedfrom office because a removal implies that the office exists after theouster. Thus in the case of Manalang vs, Quitoriano, G. R. No. L-6898,promulgated on April 30, 1954, this Court said:

    "This pretense can not be sustained. To begin with, petitionerhas never been Commissioner of the National Employment Serviceand, hence, he could not have been, and has not been removed there-from. Secondly, to remove an officer is to oust him from office beforethe expiration of his term. A removal implies that the office existsafter the ouster. Such is not the case of petitioner herein, for Re-public Act 761 expressly abolished the Placement Bureau, and, by im-plication, the office of the Director thereof, which, obviously, cannotexist without said Bureau. By the abolition of the latter and of saidoffice, the right thereto of its incumbent, petitioner herein, was neces-sarily extenguished thereby. Accordingly, the constitutional mandateto the effect that 'no officer or employee in the civil service shall beremoved or suspended except for cause as provided by law' (Art. XII,Sec. 4, Phil. Const.) , is not in point, for there has been neither a re-moval nor a suspension of the petitioner Manalang, but an abolition ofhis former office of Director of the Placement Bureau, which, admit-tedly, is within the power of Congress to undertake by legislation."(supra, 50 0.0. 2515.)

    To the same effect is the following:"To dispense with an unnecessary court is not to change his term

    of judgeship, nor is it to affect the guaranties of the Constitution as tohis salary, nor does it remove the judge from office. The office nolonger exists, and, of course, a removal from an office that has noexistence is not a conceivable proposition." (McCulley vs. State,53 S.W. 134.)

  • RECENT DOCU~NTS 771For all practical purposes and to all constitutional intents, a judge

    of first instance is on the same footing as an officer or employee in thecivil service insofar as permanence of tenure is concerned, because where-as the judge is to serve during good behavior, an officer or employeein the civil service may not be removed or suspended except for causeas provided by law. In both cases the office is statutory, and it isfundamental and elementary that a statute cannot be irrepealable. Thepetitioners are certainly mistaken in believing that the only way tore-concile section 1 with section 9 of Article VIII of the Constitution is tohold that any attempt to abolish the position of a judge should only00 made effective after the expiration of his term; because it is noless tenable and sound to rule that a judge may hold office duringgood behavior only as long as his position lasts. It may not be urgedthat the latter construction would render section 9 meaningless, for thereason that, in the absence of said constitutional provision, the Congressmay fix the judge's term of office at, say, one year, two years, threeyears, or any definite period.

    The case of Commonwealth vs, Gamble, 62 Pa. 343, mainly reliedupon by the petitioners, is not decisive, since the statute therein involvedsingled out a particular judge. In the case at bar, as already pointedout, all positions of Judge-at-Large and Cadastral Judge were not abolished.Besides, the case of Commonwealth vs. Gamble was invoked in the caseof AIkman vs. Edwards, supra, and the Supreme Court of Kansas didnot follow it, holding:' ''To allow the legislature, while making one newdistrict, to legislate the judge of an old district out of office, and providefor appointment or election of two new judges, would clearly be viciousin the principle, and this is the class of legislation which falls within theccnstitutional inhibition. But to prohibit the legislature from abolishinga district which had been improvidently established, and thereby va-cates the office of a judge, is another and altogether different thing,which the Constitution does not, in express terms, prohibit."

    There is no point in the observation that the implied power ofCongress to abolish inferior courts cannot prevail over the express con-stitutional provision on tenure of office. The petitioner's case is alsonecessarily premised only upon the implied proposition that said tenuremay not be shortened. If the power to abolish were intended to bequalified by the permanence of tenure, the Constitution would have,along with the provision that the judges of inferior courts shall holdoffice during good behavior until they reach the age of seventy yearsor become incapacitated, further ordained that their term shall not beshortened or affected by the abolition of any inferior courts; in the sameway that although the judges "shall receive such compensation as maybe fixed by law," the Constitution contains the express limitation that

  • 772 PHILIPPINE LA.W JOURNALsuch compensation "shall not be diminished during their continuancein office" (Section 9, Article VIII, Constitution).

    There is nothing to the distinction attempted to be drawn fromthe circumstance that the legislative power to abolish a court sustainedin American cases, was expressly conferred by the Constitution, whereasthe right of our Congress to abolish is merely implied from its consti-tutional power to create inferior courts. In both cases the power exists,and we cannot see any difference as to its force and effect when exercised.

    Let it be clearly understood that we are not here concerned witha case of one or more judges of first instance being singled out forelimination nor with a case contemplated by Mr. Justice Laurel in hisconcurring opinion in Zandueta vs. De la Costa, supra, when he gavethe warning that where the violation of a constitutional provision re-garding security of judicial tenure is palpable and plain, and the legis-lative power of reorganization is sought to cloak an unconstitutional andevil purpose, it will be the time to make the hammer fall and heavily.

    As the power of appointment carries with it the power of removal,it is more logical to suppose that, as the judges are appointed by thePresident, the security of tenure contemplated by section 9 of ArticleVIII of the Constitution, was intended more as a restraint against Exe-cutive removal; and as a matter of fact, in implementation of this objec-tive, it has been provided in section 67 of the Judiciary Act of 1948that no District Judge, Judge-at-Large or Cadastral Judge shall be sepa-rated or removed from office by the President of the Philippines un-less sufficient cause shall exist, in the judgment of the Supreme Court,involving serious misconduct or inefficiency, for the removal of said judgefrom office after the proper proceedings.

    We are not blind to the great importance and imperative desirabilityof having and maintaining an independent judiciary. At the same time,we cannot abridge the powers of Congress under the Constitution. It isnot for us to judge the wisdom of the framers of our Constitution ingranting Congress legislative power with reference to the establishmentof courts inferior to the Supreme Court. But with all the constitutionaland statutory safeguards, and any device conceivable by the ingenuityof man, for judicial independence, after all there can be no surer gua-ranty for a true administration of justice than the God-given characterand fitness of those appointed to the Bench. The judges may be gua-ranteed a fixed tenure of office during good behavior, but if they are ofsuch stuff as allows them to be subservient to one administration afteranother, or to cater to the wishes of one litigant after another, the inde-pendence of the judiciary will be nothing more than a myth or an emptyideal. Our judges, we are confident, can be of the type of Lord Coke,regardless or in spite of the power of Congress-we do not say unlimitedbut as herein exercised-to reorganize inferior courts.

  • RECENT DOCUMENTS 773PADILLA, }.:

    .In so far as the security of tenure of judges is concerned, I am inaccord with Mr. Justice Bengzon's view. A fixed tenure during goodbehavior, long recognized as essential to an independent judiciary, has inthis country been translated into a constitutional ban limiting the powersof Congress in dealing with the courts and for that reason not to bewritten off with the argument that as Congress has the express authorityto establish courts inferior to the Supreme Court, it necessarily has alsothe implied authority to abolish them. For how could there be a fixedtenure if the office may at any time be abolished? As the Constitutionexpressly prohibits the removal of a judge (except for cause) duringhis term of office, reason dictates that the implied power to abolish courtsmust be deemed withheld where its exercise would bring about what isprohibited. What the Constitution prohibits the Congress to do directlyshould not be allowed to be done by indirection, circumvention andresort to an implied power to nullify an express constitutional mandate.

    The Constitution provides and ordains that "all judges of inferiorcourts shall hold office during good behavior, until they reach the ageof seventy years, or become incapacitated to discharge the duties of theiroffice" and "shall receive such compensation as may be fixed by law,which shall not be diminished during their continuance in office."1 Italso provides that "No judge appointed for a particular district shall bedesignated or transferred to another district without the approval of theSupreme Court. The Congress shall by law determine the residence ofjudges of inferior courts." Z

    Section 53 of Republic Act No. 296 provides:In addition to the District Judges mentioned in section forty-nine

    hereof there shall also be appointed eighteen Judges-at-large and fifteenCadastral Judges who shell not be assigned permanently to any judicialdistrict and who shall render duty in such district or province as may,from time to time. be designated by the Department Head. (Under-scoring supplied.)

    This is the law that created or established the office of the petitioners.The law offends against section 7, Article VIII, of the Constitution, notonly because it does not determine or fix the residence of the petitionersas judges, as ordained bv the Constitution, but also because the authorityto designate them to render duty in districts or provinces other than thoseof their residence is lodged in the Department Head alone when accoru-ing to the same section and article of the Constitution the authoritymust be exercised with the approval of the Supreme Court. There isno reason why section 9, Article VIII, of the Constitution should begiven effect and section 7 of the same article nullified.

    The last paragraph of section 3 of Republic Act No. 1186 repeals

    1Section 9, Article VIII.2 Section 7, supr.

  • 774 PHILIPPINE LAW JOURNAL

    section 53 of Republic Act 296 quoted above and the positions of Judges-at-Large and Cadastral Judge are thereby abolished. The paragraphis assailed on the ground that it infringes upon section 9, Article VIII,of the Constitution. By repealing section 53 of Republic Act No. 296and abolishing the anomalous judicial positions therein created, the Con-gress has but rectified a grave error-with intent, no doubt, to makethe judicial system conform to the Constitution by eliminating there-from judges that could be moved about at the pleasure of an ExecutiveDepartment and to that extent exposed to extraneous influences. Topermit the continuance of a system that offends against the fundamental:aw would be :a dereliction of duty on the part of Congress. On theother hand, the Constitution is upheld and not violated where judicialpositions created or established contrary to its provisions-such as thoseheld by the herein petitioners-are abolished.

    For these reasons the petition should be dismissed.

    REYES, A., J., concurring:I concur in the opinion of the Chief Justice. But I must say fur-

    ther that even supposing that Congress may not, as a general rule,abolish a judicial post without allowing the incumbent to finish his termof office, still I see weight in Mr. Justice Padilla's opinion that to allowthe petitioners herein to continue as judges-at-large and cadastral judgeswithout permanent assignment and forever subject to being moved fromone judicial district to another without the consent of the Supreme Courtwould be to perpetuate a system repulsive to an independent judiciaryand a clear evasion of the Constitution.

    LABRADOR, J.:I do not dispute the fundamental principles which my brethren

    have expounded as underlying our scheme of government. The inde-pendence of the judiciary, its inviolability against executive or legislativeencroachment and the permanence of judicial tenure are so plain as toneed elucidation. I am also aware of the fact that the judiciary is theweakest of all the three departments of the Government. However, inour zealousness to conserve judicial independence we should be carefulto guard against self-pity and passion taking the better part of reasonand allowing them to becloud the real issue. The question should bedispassionately considered, bearing in mind, on the one hand, that everypresumption of good faith should be accorded a coordinate departmentthat had decreed the passage of the disputed legislation, especially as inthe present instance the legislative department has been expressly grantedthe power to organize

  • RECENT DOCUMENTS 775

    circumstances in a very great measure may give an aspect to the issuedifferent from what it may appear to be.

    The office of judge-at-Iarge was introduced in this jurisdiction inthe year 1902. It is a peculiar contraption unknown in other judicialsystems. Under Act No. 396 (Philippine Commission, May 9, 1902),four judges of first instance, in addition to those created in Act No. 136,were to be appointed, who "may be required to perform the duties ofthe judge of first instance of any province, when directed by the CivilGovernor." But under the first judicial reorganization act (Act No. 2347,approved February 28, 1914), the positions of auxiliary judges of firstinstance were created in the place of judge-at-large in that he is ap-pointed to a group of judicial districts to which he is appointed andacquires the right to hold court and exercise judicial function only ifand when he is assigned by the Executive Department to a district.Under Act No. 2347 the auxiliary judge was to hold session in the placeof his residence. Specific prohibition existed against his serving in anydistrict not included in his commission. (Sec. 4.)

    The positions of auxiliary judges were continued in the Administra-tive Code of 1916 and 1917. Under the latter, the stations of auxiliaryjudges were fixed, and they were to hold court thereat without need ofassignment by the Secretary of Justice, but only upon request of ajudge of a district. (Secs. 157-160.) These positions of auxiliary judgeswere continued until December 6, 1932, when Act No. 4007 by amendingSection 157 of the Administrative Code again created the positions ofsix judges-at-large, who were not assigned to any judicial district butwere to hold court in any district when the Secretary of Justice desig-nates them to do so.

    "Sec. 157. Judges-at-Iarge.-In addition to the judges mentionedin section one hundred and fifty-four hereof, as amended, there shallalso be appointed six judges who shall not be assigned permanently toany judicial district and who shall render duty in such districts orprovinces as may, from time to time, be designated by the Depart-ment Head. (Sec. 24, Act No. 4007.)

    The above was the set-up of judges-at-large when the Constitution wasapproved. Thereafter, on November 7, 1936. Commonwealth Act No.145 reduced the number of judges-at-large to five. (Sec. 3.) On August19, 1938, C.A. No. 348 increased the number of judges-at-large to twelve.(Sec. 2.)

    The positions of cadastral judges were first created under C.A. No.504, which provides:

    "Sec. 1. In addition to the existing positions of judges of firstinstance, there are created fifteen positions of judges of first instanceto be appointed as provided by law. Said judges shall be paid asalary of eight thousand four hundred pesos per annum each, and shallhave the same rank, powers and privileges enjoyed by and grantedto judges of first instance,' but their jurisdiction shall be limited to

  • 776 PHILIPPINE LAW JOURNAL

    cases an smg under the Cadastral Act and the Land Registration Act.They shall render duty in such judicial districts or provinces as m;y,from time to time, be ,designated by the Secretary of Justice."

    There were, prior to the passage of Republic Act No. 1186, 18positions of judges-at-large and 15 positions of cadastral judges. (sec.53, R.A. No. 296.)

    While the idea of a judge-at-large may be traced to an early date(1902) it was suppressed in 1914 and did not appear again in ourjudicial system until 1932. Its usefulness as a contrivance to help inthe clearing of clogged dockets may be admitted, but its useful existenceIor a long time in our statute books can not cure or remedy its funda-mental defect-the lack of a specific district where the judge can exer-cise his judicial functions freely without interference from anyone,much less an executive or administrative superior, and from which hemay not be moved away without his consent. It must be rememberedthat one of the legal ramparts guarding judicial independence is irre-movability from the district to which one is appointed. This principlewas first enunciated in the case of Borromeo vs. Mariano, 41 Phil. 322.and I hold that it should not apply to district judges alone, but to alljudges of any court of any grade. If a judge can be moved from oneplace to another at the will or mercy of an executive official he certainlycannot have the freedom to act in the trial and decision of cases accord-ing to the dictates of his reason and conscience; there is no hindrancefor him to trade his convictions for personal conveniences in order towin favor with the executive authority that assigns him and upon whosegood will his promotion depends.

    The other fundamental defect of the system of judges-at-large isthe power of the Executive branch to determine where judges shall sit.Through the exercise of this power the Executive branch can assignfriendly, or sympathetic, or willing tools to any place to try specificcases so that these may be tried and decided in the form and mannerin which the Executive branch desires.

    The office of judge-at-large, therefore, is incompatible with the prin-ciple of judicial independence. In the cases of Borromeo vs. Mariano,supra, and Concepcion vs. Paredes (42 Phil. 599), this Court frownedupon the attempt to transfer a judge to another district against his willand the attempt to decide by lot where judges shall sit, these being,according to the Court, subversive of judicial independence, self-respect,and integrity, it is much more undesirable and condemnable to havejudges act as such only if and when directed by an executive officer andonly at places to which they are assigned.

    Section 7 of Article VIII of the Constitution provides:

    "No judge appointed for a particular district shall be designatedor transferred to another district without the approval of the Supreme

  • RECENT DOCUMENTS 777Court. The Congress shall by law determine the residence of judgesof inferior courts."

    The above provision of the residence of judges was inserted becausejudges of first instance used to reside in Manila, or in places other thanwhere they hold court, making them unavailable in their courts exceptwhere they actually hold sessions, to the great inconvenience of thepublic, and impairing their efficiency, because the time and energy spentby them in going to and from their residence to their courts, reducedthe time and attention they could devote to their work. The prevailingl'eeling in the Constitutional Convention that judges of first instanceshould have designated places of residence must be considered applicableto judges-at-large, who resided in Manila. They could not permanentlyreside in districts out of Manila because by the very nature of theiroffice they were to be assigned from time to time to different provincesof the Archipelago where their services are needed.

    Notwithstanding the constitutional directive for the legislature toprovide by law the residences of judges of inferior courts, the legislaturedid not for some time see fit to provide official residences for judges-at-large and cadastral judges. In time, the party in power saw in thesejudges-at-large and cadastral judges, and specially in the peculiar pro-vision that they shall hold court only in places to which they may beassigned by the Secretary of Justice, a means to influence the course ofjustice. Through the Secretary of Justice, a political appointee, friendlyor sympathetic judges-at-large and cadastral judges were picked up forassignment to places where the administration or the party in power orthe influential politicians desired cases (especially election cases) to bedecided in one way or another. In time, judges-at-large and cadastraljudges were not only assigned to specific provinces, but they were as-signed to hear particular cases and authorized to decide these casesin Manila. In one notorious case once before this Court, a judge-at-largewas made to abandon a heavy calendar of hearings to try a case in3 nearby province presumably in the form and manner in which theAdminstraticn desired it to be conducted or decided, to the extremeinconvenience of the residents of the province where his calendar waspreviously fixed and to the just indignation of lovers of justice. (Mon-tano vs. Mejia, G.R. No. L-6416.)

    It has come to pass, therefore, that the offices of judges-at-largeand cadastral judges, which were established for the prompt dispatchof cases has become the avenue through which pernicious political in-fluence has sought to corrupt the administration of justice. It can notbe: denied that it is this intolerable anomaly which Congress sought toremedy by Sec. 3, par. 2 of Republic Act No. 1186, although some legis-lators may have personal reasons of their own in supporting its passage.To the credit of the present Congress, let it be said that the disputed

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  • RECENT DOCUMENTS 779

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  • 780 PHILIPPINE LAW JOURNAL

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  • RECENT DOCUMENTS 781

    ycu vjgp pq rtqxkutqp kp vjg Mcuucejwugvvueqpuvkvwvkqpukoknct vq qwtucpf tgictfkpi eqorwnuqt} tgvktgogpv cv vjg cig qh ugxgpv}/ Tjg uwr.tgog lwfkekcneqwtv jgnf vjcv vjg rtqrqugf rtqxkukqp ku xkqncvkxgqh vjgrv qxkukqpqh vjg eqpuvkvwvkqpvjcv cnn lwfkekcn qhhkegtuujcnn jqnf vjgktqhhkegufwtkpi iqqf dgjcxkqt/ Tjg eqwtv uckf vjcv vgpwtg qh qhhkegqhlwfigu cu vjwu ugvvngfd} vjg eqpuvkvwvkqpku korgtcvkxg cpf hkpcncpfvjg ucog oc} pqv dg gpnctigf- nkokvgf-oqfkhkgf- cnvgtgf qt kp cp} yc}chhgevgf d} vjg Ggpgtcn Cqwtv/ Tjku ecug ku pqv crrnkecdng vq vjg ecugcv dct dgecwugpq rqukvkqpycu cdqnkujgf/ Tjg rqukvkqpuygtg eqpvkpwgfcpf vjg kpewodgpvu ygtg uqwijv vq dg. fgrtkxgf qh vjgkt qhhkeguwrqpvjgkt tgcejkpi vjg cig qh 70 }gctu/ Tjg ecug ycu engctn} ujqtvgpkpivjg vgpwtg qh lwfkekcnkpewodgpvu cpf ecp pqv crrn} vq vjg ecug cvdct yjgtg vjg rqukvkqpuqt qhhkeguqh lwfigu.cv.nctig cpf ecfcuvtcn lwfiguctg cdqnkujgf/

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  • 782 PHILIPPINE LAW JOURNAL

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  • RECENT DOCUMENTS 783

    lwfig)u vgto vq qxgtvjtqy vjg qvjgt encwug-yjgtgcu yg eqpuvtwg vjgrtqxkukqp vjcv vjg lwfig)u vgto ujcnn dg gkijv }gctu vq dg wrqp vjgcuuworvkqp vjcv vjg eqwtv eqpvkpwgu vq gzkuv; qvjgtykug- yg ujqwnfjcxg vq jqnf vjcv vjg eqwtv owuv eqpvkpwg-cnvjqwij fgenctgf wppgegu.uct} cpf cdqnkujgf d} vjg ngikuncvwtg-ukorn} vq ugewtg vq vjg lwfigjku hwnnvgto cpf ucnct}/ z z z Iv ku ctiwgf vjcv vjg cev cdqnkujkpivjg eqwtv fkf pqv cdqnkuj vjg lwfigujkr/ Owt eqpuvkvwvkqpfqgu pqvtgeqipkng c lwfigujkr gzegrv cu vjg lwfig ku vjg kpewodgpv qh c eqwtvqt eqwtvu yjkej jg ku eqookuukqpgf vq jqnf/ Wg jcxg pq uwrgtpw.ogtctkgu/ z z z Ih vjg ncy cdqnkujkpi vjg eqwtvu ku xcnkf- vjg qhhkegucpf vjgkt kpewodgpvu pgeguuctkn}egcug- cpf qh eqwtug- cnqpi ykvj vjgovjgkt ucnctkgu/z z z Tq fkurgpug ykvj cp wppgeguuct} eqwtv ku pqv vqejcpig vjg vgto qh lwfigujkr- pqt ku kv.vq chhgevvjg iwctcpvkgu qh vjgeqpuvkvwvkqpcu vq jku ucnct}- pqt fqgu kv tgoqxg vjg lwfig htqo qhhkeg/Tjg qhhkegpq nqpigt gzkuvu-cpf- qh eqwtug- c tgoqxcn htqo cp qhhkegvjcv jcu pq gzkuvgpeg ku pqv c eqpegkxcdng rtqrqukvkqp/' *53 S/W/

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    Tjg yqtfu qh Jwfig MeFctncpf cdqxg swqvgf cnuq hncvn}tghwvgvjg ctiwogpv vjcv d} vjg fkurwvgf rtqxkukqpu vjg ngikuncvwtgku ngiku.ncvkpi lwfigu qwv qh qhhkeg/ Hcf vjg rqukvkqpudggp tgvckpgf cpf ikxgpvq qvjgtu vjg encko yqwnf jqnf ycvgt/ Au kv ku- jqygxgt- lwfigujkruykvjqwv rctvkewnct fkuvtkevujcxg dggp cdqnkujgf- qt qhhkegucdqnkujgf- cpfcu vjg qhhkeguctg pq nqpigt gzkuvkpi-jqy ecp yg uc} vjcv vgpwtg vjgtgqhecp gzkuv? Hqy ecp vjgtg dg vgpwtg qh qhhkeghqt cp qhhkegvjcv fqgu pqvgzkuv?

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  • 784 PHILIPPINE LAW JOURNAL

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    vjg Cqpuvkvwvkqp/Wjgtghqtg- I xqvg cickpuv vjg itcpvkpi qh vjg rgvkvkqpvjcv vjg fkurwvgf rtqxkukqpu qh vjg pgy Jwfkekct} Lcy *Rgrwdnke AevNq/ 1186, dg fgenctgf wpeqpuvkvwvkqpcncpf xqkf- cu cickpuv vjg rgvk.vkqpgtu/

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    Wjgp RgrwdnkeAev Nq/ 1186 vqqmghhgevqp Jwpg 19- 195

  • 786 PHILIPPINE LAW JOURNAL

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  • RECENT DOCUMENTS 121rqpfgpvu tgn} qp swAvsnm cwvjqtkv} vq cdqnkuj eqwtvu cpf vjg rqukvkqpuqh vjg tgurgevkxg lwfigu/ Aeewtcvgn}uvcvgf- tgurqpfgpvu) fghgpug tguvuqp c ugeqpf kphgtgpeg fgfwegf htqo uwej swAvsnm rqygt- dgecwug vjg}tgcuqp qwvvjwun}: Cqpitguu jcu gzrtguu rqygt vq guvcdnkujeqwtvu; DrnBn1sBK kvjcu kornkekvrqygt vq cdqnkuj eqwtvu cpf vjg rqukvkqpuqh lwfiguqh uwej cdqnkujgf eqwtvu *hktuvkphgtgpeg,; iym DrnBnoBn *ugeqpf kphg.tgpeg, Cqpitguu nkmgykugjcu rqygt vq glgev vjg lwfigu jqnfkpi uwejrqukvkqpu/

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  • 794 PHILIPPINE LAW JOURNAL

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  • 796 PHILIPPINE LAW JOURNAL

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  • RECENT DOCUMENTS 799

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  • 800 PHILIPPINE LAW JOURNAL

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