A.M. No.

198-J May 31, 1971

PAZ M. GARCIA, complainant,
vs.
HON. CATALINO MACARAIG, JR., respondent.
R E S O L U T I O N

BARREDO, J.:
Administrative complaint filed by one Pa !. "arcia a#ainst t$e %onorable &atalino !acarai#, 'r., formerly
'(d#e of t$e &o(rt of )irst Instance of La#(na, *ranc$ +I, no, Undersecretary of '(stice, in $is former
capacity as -(d#e, for alle#ed .dis$onesty, violation of $is oat$ of office as -(d#e ... #ross incompetence,
violation of Rep(blic Act /01 or t$e '(diciary Act of 2034, as amended, 5partic(larly6 Sections 7, 77 and 74
t$ereof, committed 5alle#edly6 as follo,s8
/. T$at from '(ly 2, 209: (p to )ebr(ary /4, 2092 incl(sive, as s(c$ inc(mbent '(d#e,
respondent $erein, $as not s(bmitted $is mont$ly reports containin# t$e n(mber of cases
filed, disposed of, decided and;or resolved, t$e n(mber of cases pendin# decisions for one
mont$, t,o mont$s to over t$ree mont$s, to#et$er ,it$ t$e title, n(mber, n(mber of $o(rs of
co(rt session $eld a day, etc., as evidenced by t$e certificate iss(ed by %on. E(lalio <.
Pic$ay, '(dicial S(perintendent, <ept. of '(stice, copy of ,$ic$ is $ereto attac$ed as Anne=
.A., Item No. 2, in violation of &irc(lar No. 2: of t$e <ept. of '(stice dated )ebr(ary 1, 207/,
copy of ,$ic$ is $ereto attac$ed as Anne= .*.>
?. T$at $e $as not s(bmitted $is certificate of service 5Ne, '(dicial )orm No. 41, Revised
20116 from '(ly to <ecember, 209: and from 'an(ary to )ebr(ary, 2092 incl(sive as
evidenced by t$e certificate iss(ed by '(d#e Pic$ay, '(dicial S(perintendent, <ept. of '(stice
Anne= .A., Item No. / t$ereof>
3. T$at as inc(mbent '(d#e of *ranc$ +I, &o(rt of )irst Instance of La#(na and San Pablo
and @no,in# f(lly ,ell t$at $e $as never performed $is official d(ties or disc$ar#ed t$e d(ties
appertainin# to $is office, $e $as collected and ,as paid $is salaries from '(ly to <ecember,
209: and from 'an(ary to )ebr(ary 2092 as evidenced by t$e certificate iss(ed by t$e cas$ier
!rs. Santos of t$e <epartment of '(stice $ereto attac$ed as Anne= .&. and t$e certificate of
!r. Pic$ay Anne= .A., last para#rap$ t$ereof, a##ravated by $is repeated fail(re to s(bmit t$e
certificate of service in fla#rant violation of action 7 of t$e '(diciary Act of 2034 as amended
,$ic$ provides as follo,s8
... <istrict -(d#es, -(d#es of &ity &o(rts, and m(nicipal '(d#es s$all certify
on t$eir application for leave, and (pon salary vo(c$ers presented by t$em
for payment, or (pon t$e payrolls (pon ,$ic$ t$eir salaries are paid, t$at all
special proceedin#s, applications, petitions, motions, and all civil and
criminal cases ,$ic$ $ave been (nder s(bmission for decision or
determination for a period of ninety days or more $ave been determined and
decided on or before t$e date of ma@in# t$e certificate and ... no salary shall
be paid without such certificateA 5Emp$asis s(pplied6.
7. T$at $is deliberate fail(re to s(bmit t$e mont$ly reports from '(ly to <ecember, 209: and
from 'an(ary, 2092 to )ebr(ary, 2092 statin# t$erein t$e n(mber of $o(rs of session t$at t$e
&o(rt $olds daily, t$e accomplis$ments of t$e &o(rt constit(tes a clear violation of Sections
77 and 74 of t$e '(diciary Act of 2034, as amended.
1. T$at by $is deliberate violation of $is Oat$ of Office as a <istrict '(d#e of t$e &o(rt of )irst
Instance of La#(na and San Pablo, *ranc$ +I $e $as manifested s(c$ moral ban@r(ptcy as to
deny $is fitness to perform or disc$ar#e official d(ties in t$e administration of -(stice.
9. T$at on '(ne /0, 209:, respondent '(d#e ,rote to t$e %onorable Secretary of '(stice
informin# $im t$at $e ,as enterin# (pon t$e performance of $is d(ties, ,$ic$ letter of $is
reads in f(ll8
AI $ave t$e $onor to inform yo( t$at I am enterin# (pon t$e performance of
t$e d(ties of t$e office of '(d#e of t$e &o(rt of )irst Instance of La#(na and
San Pablo &ity 5*ranc$ +I6 today, '(ne /0, 209:.A
T$at s(c$ act(ation of deliberately tellin# a deliberate false$ood a##ravates $is moral
ban@r(ptcy incompatible to t$e reB(irements of t$e $i#$est de#ree of $onesty, inte#rity and
#ood moral c$aracter appertainin# to $oldin# t$e position of '(d#e in t$e administration of
-(stice.
Upon bein# so reB(ired, in d(e time, respondent filed an ans,er alle#in# pertinently t$at8
T%E )A&TS
Respondent too@ $is oat$ as '(d#e of t$e &o(rt of )irst Instance of La#(na and San Pablo
&ity ,it$ station at &alamba on '(ne /0, 209:. T$e co(rt, bein# one of t$e 22/ ne,ly created
&)I branc$es, $ad to be or#anied from scratc$. After cons(ltations ,it$ t$e officials of t$e
province of La#(na, t$e m(nicipality of &alamba and t$e <epartment of '(stice, respondent
decided to accept t$e offer of t$e &alamba !(nicipal "overnment to s(pply t$e space for t$e
co(rtroom and offices of t$e co(rt> to (tilie t$e financial assistance promised by t$e La#(na
provincial #overnment for t$e p(rc$ase of t$e necessary s(pplies and materials> and to rely
on t$e national #overnment for t$e eB(ipment needed by t$e co(rt 5Under Section 20: of t$e
Revised Administrative &ode, all t$ese items m(st be f(rnis$ed by t$e provincial #overnment.
T$e provincial officials of La#(na, $o,ever, informed t$e respondent t$at t$e province ,as not
in a position to do so6.
As to t$e space reB(irements of t$e co(rt, t$e !(nicipal !ayor of &alamba ass(red t$e
respondent t$at t$e co(rt co(ld be accommodated in t$e ,est ,in# of t$e &alamba m(nicipal
b(ildin# as soon as t$e office of t$e m(nicipal treas(rer and $is personnel are transferred to
anot$er location. C$en t$e pro-ected transfer of t$e m(nicipal treas(rerAs office ,as abo(t to
be effected, t$e treas(rer and several m(nicipal co(ncilors ob-ected. T$e m(nicipal mayor
t$en reB(ested t$e respondent to loo@ over some of t$e office spaces for rent in &alamba,
,it$ t$e commitment t$at t$e m(nicipal #overnment ,ill s$o(lder t$e payment of t$e rentals.
RespondentAs first c$oice ,as t$e second floor of t$e Rep(blic *an@ branc$ in &alamba, b(t
t$e ne#otiations failed ,$en t$e o,ner of t$e b(ildin# ref(sed to red(ce t$e rent to P?:: a
mont$. T$e ne=t s(itable space selected by respondent ,as t$e second floor of t$e La#(na
<evelopment *an@. After a mont$As ne#otiations, t$e m(nicipality finally si#ned a lease
a#reement ,it$ t$e o,ner on October /1, 209:. Anot$er mont$ passed before t$e m(nicipal
#overnment co(ld release t$e amo(nt necessary for t$e improvements to convert t$e space
t$at ,as rented, ,$ic$ ,as a bi# $all ,it$o(t partitions, into a co(rtroom and offices for t$e
personnel of t$e co(rt and for t$e assistant provincial fiscal. T$ereafter, (pon respondentAs
representations, t$e provincial #overnment appropriated t$e amo(nt of P7,::: for t$e
p(rc$ase of t$e s(pplies and materials needed by t$e co(rt. Early in <ecember, 209:
respondent also placed $is order for t$e necessary eB(ipment ,it$ t$e Property Officer of t$e
<epartment of '(stice b(t, (nfort(nately, t$e appropriation for t$e eB(ipment of co(rts of first
instance ,as released only on <ecember /?, 209: and t$e proc(rement of t$e eB(ipment
c$ar#eable a#ainst t$is allotment is still (nder ,ay 5please see enclosed certification of t$e
)inancial Officer of t$e <epartment of '(stice mar@ed Anne= .A.6.
.C$en respondent realied t$at it ,o(ld be sometime before $e co(ld act(ally preside over $is co(rt, $e
applied for an e=tended leave 5d(rin# t$e 21 years $e $ad ,or@ed in t$e <epartment of '(stice, respondent
$ad, d(e to press(re of d(ties, never #one on e=tended leave, res(ltin# in $is forfeitin# all t$e leave benefits $e
$ad earned beyond t$e ma=im(m ten mont$s allo,ed by t$e la,6. T$e Secretary of '(stice, $o,ever, prevailed
(pon respondent to fore#o $is leave and instead to assist $im, ,it$o(t bein# e=tended a formal detail,
,$enever respondent ,as not b(sy attendin# to t$e needs of $is co(rt.
.&$ar#es %ave No *asis DD .
.&omplainant $as c$ar#ed respondent ,it$ dis$onesty, violation of $is oat$ of office, #rave incompetence and
violation of Sections 7, 77 and 74 of t$e '(diciary Act.
.It is respectf(lly s(bmitted t$at DD .
.A. RespondentAs inability to perform $is -(dicial d(ties (nder t$e circ(mstances mentioned above does not
constit(te incompetence. Respondent ,as li@e every la,yer ,$o #ets $is first appointment to t$e benc$, ea#er
to ass(me $is -(dicial d(ties and rid $imself of t$e sti#ma of bein# Aa -(d#e ,it$o(t a salaA, b(t forces and
circ(mstances beyond $is control prevented $im from disc$ar#in# $is -(dicial d(ties.
.*. RespondentAs collection of salaries as -(d#e does not constit(te dis$onesty beca(se aside from t$e time,
effort and money $e spent in or#aniin# t$e &)I at &alamba, $e ,or@ed in t$e <epartment of '(stice 5please
see enclosed certification of Undersecretary of '(stice "(illermo S. Santos mar@ed Anne= A*A6. Indeed, even if
respondent did no more t$an e=ert efforts to or#anie $is co(rt, $e co(ld, as ot$er -(d#es $ave done, $ave
collected $is salaries as -(d#e ,it$o(t bein# #(ilty of dis$onesty.
.Incidentally, ,$en respondent too@ $is oat$ as &)I -(d#e ,$ic$ position t$en carried a salary of P20,::: per
ann(m, $e a(tomatically ceased to be &$ief of t$e Tec$nical Staff of t$e <epartment of '(stice and !ember of
t$e *oard of Pardons and Parole, positions from ,$ic$ $e ,as receivin# P21,/:: and P4,::: per ann(m,
respectively. Also, in anticipation of t$e -(dicial d(ties ,$ic$ $e ,as abo(t to ass(me, respondent too@ a leave
of absence from $is professorial lect(rerAs d(ties in t$e U.P. &olle#e of La, ,$ere $e ,as receivin#
appro=imately P1:: a mont$.
.&. Sections 7, 77 and 74 of t$e '(diciary Act and &irc(lar No. 2: dated )ebr(ary 1, 207/ of t$e <epartment of
'(stice are not applicable to a '(d#e not act(ally disc$ar#in# $is -(dicial d(ties.
.T$e <epartment of '(stice $as never reB(ired -(d#es ,$o $ave not act(ally started, to perform t$eir -(dicial
d(ties to comply ,it$ t$e abovementioned stat(toryDprovisions and circ(lar 5please see enclosed certification of
'(d#e E(lalio <. Pic$ay, '(dicial S(perintendent, mar@ed Anne= A&A6.
.!oreover, a readin# of t$ese sections and circ(lar ma@es evident t$e folly of reB(irin# a -(d#e ,$o $as not
entered into t$e Performance of $is -(dicial d(ties to comply ,it$ t$em. Ta@in# Section 7, $o, co(ld a -(d#e
,$o $as not started to disc$ar#e $is -(dicial d(ties certify t$at Aall special proceedin#s, applications, petitions,
motions, and all civil and criminal cases, ,$ic$ $ave been (nder s(bmission for decision or determination for a
period of ninety days or more $ave been determined and decided on or before t$e date of ma@in# t$e
certificate.A And bo, co(ld s(c$ a -(d#e $old co(rt in $is place of permanent station as reB(ired by Section 77>
observe t$e $o(rs of daily sessions of t$e co(rt as prescribed by Section 74> and render t$e reports reB(ired by
&irc(lar No. 2: ,$en $is co(rt is not yet in p$ysical e=istence &learly, t$erefore, Sections 7, 77 and 74 of t$e
'(diciary Act and &irc(lar No. 2: cannot apply to s(c$ a -(d#e.. .
In vie, of t$e nat(re of t$e alle#ations of complainant and respondent in t$eir respective complaint and ans,er
and considerin#, in t$e li#$t t$ereof, t$at t$e material facts are more or less (ndisp(ted, t$e &o(rt feels t$at t$is
case can be disposed of ,it$o(t any f(rt$er proceedin#.
After mat(re st(dy and deliberation, t$e &o(rt is convinced t$at t$e complaint m(st be dismissed. To be#in
,it$, Ce cannot discern any tin#e of dis$onesty in t$e act(ations for t$e respondent complained of. As Ce see
it, t$e sit(ation is not e=actly as complainant $as attempted to portray it. &omplainantAs t$eory is t$at
respondent collected or received salaries as -(d#e ,$en in fact $e $as never acted as s(c$, since t$e date $e
too@ $is oat$ (p to t$e filin# of t$e complaint. In t$e sense t$at respondent $as not yet performed any -(dicial
f(nction, it may be admitted t$at respondent $as not really performed t$e d(ties of -(d#e. C$at is lost si#$t of,
$o,ever, is t$at after ta@in# $is oat$ and formally ass(min# t$is position as -(d#e, respondent $ad a perfect
ri#$t to earn t$e salary of a -(d#e even in t$e e=treme s(pposition t$at $e did not perform any -(dicial f(nction
for $e co(ld, ,$ile preparin# $imself for $is ne, -ob or for any #ood reason, ta@e a leave, as in fact, $e $ad
planned to do, ,ere it not for t$e reB(est of t$e Secretary of '(stice for $im to fore#o t$e idea and, instead,
$elp t$e <epartment in ,$atever ,ay possible ,$ic$ ,o(ld not, it m(st be pres(med, impair $is position as a
-(d#e. T$is is more so, ,$en, as in t$is case, t$e #overnment officials or officers in d(ty bo(nd to f(rnis$ $im
t$e necessary place and facilities for $is co(rt and t$e performance of $is f(nctions $ave failed to provide $im
t$ere,it$ ,it$o(t any fa(lt on $is part. T$at respondent too@ it (pon $imself to personally ,or@ for early action
on t$e part of t$e correspondin# officials in t$is direction and, in $is spare time, made $imself available to t$e
<epartment of '(stice to assist t$e Secretary, ,$at ,it$ $is vast e=perience, $avin# ,or@ed t$erein for si=teen
years, is, far from bein# dis$onesty, to $is credit. In t$e circ(mstances, it ,as certainly not improper t$at $e
rendered some @ind of service to t$e #overnment, since $e ,as receivin# salaries, ,$ile bein# (nable to
perform $is re#(lar d(ties as -(d#e ,it$o(t any fa(lt on, $is part. As to ,$et$er or not in doin# so $e, placed in
-eopardy t$e independence of t$e -(diciary and failed to act accordin# to t$e correct norm of cond(ct ,$ic$ a
-(d#e s$o(ld observe visDaDvis service to t$e ot$er departments of t$e #overnment ,ill be disc(ssed a non. At
t$is -(nct(re, t$e only point Ce settle is t$at complainantAs t$eory of dis$onesty cannot $old ,ater.
Admittedly respondent $as not prepared and s(bmitted any of t$e reports of accomplis$ments and stat(s of
cases in $is sala ,$ic$ are (s(ally reB(ired of -(d#es (nder e=istin# la,s as ,ell as t$e correspondin#
circ(lars of t$e <epartment of '(stice. T$e reason is simple. %e $as not yet started performin# any -(dicial
f(nctions. None of t$ose la,s and circ(lars apply to $im for all of t$em contemplate -(d#es ,$o are act(ally
$oldin# trials and $earin#s and ma@in# decisions and ot$ers. On t$e ot$er $and, respondent &o(ld not be
blamed for ta@in# $is oat$ as $e did, for $e $ad a valid confirmed appointment in $is favor. In ot$er ,ords, $e
simply made $imself available for t$e p(rpose for ,$ic$ $e ,as appointed. T$at $e co(ld not act(ally $old
office in t$e co(rt to ,$ic$ $e ,as appointed ,as not of $is ma@in#. T$e ot$er officials in c$ar#e of providin#
$im t$ere,it$ seem to $ave been ca(#$t (nprepared and $ave not $ad eno(#$ time to $ave it read.
&onceivably, (nder t$e la,, ,it$ t$e permission of t$is &o(rt, respondent co(ld $ave been assi#ned to anot$er
co(rt pendin# all t$ese preparations, b(t t$at is somet$in# ,it$in t$e initiative control of t$e Secretary of '(stice
and nor of t$e respondent.
Of co(rse, none of t$ese is to be ta@en as meanin# t$at t$is &o(rt loo@s ,it$ favor at t$e practice of lon#
standin# to be s(re, of -(d#es bein# detailed in t$e <epartment of '(stice to assist t$e Secretary even if it ,ere
only in connection ,it$ $is ,or@ of e=ercisin# administrative a(t$ority over t$e co(rts. T$e line bet,een ,$at a
-(d#e may do and ,$at $e may not do in collaboratin# or ,or@in# ,it$ ot$er offices or officers (nder t$e ot$er
#reat departments of t$e #overnment m(st al,ays be @ept clear and -ealo(sly observed, least t$e principle of
separation of po,ers on ,$ic$ o(r #overnment rests by mandate of t$e people t$r( t$e &onstit(tion be
#rad(ally eroded by practices p(rportedly motivated by #ood intentions in t$e interest of t$e p(blic service. T$e
f(ndamental advanta#es and t$e necessity of t$e independence of said t$ree departments from eac$ ot$er,
limited only by t$e specific constit(tional precepts a c$ec@ and balance bet,een and amon# t$em, $ave lon#
been ac@no,led#ed as more paramo(nt t$an t$e servin# of any temporary or passin# #overnmental
conveniences or e=i#encies. It is t$(s of #rave importance to t$e -(diciary (nder o(r present constit(tional
sc$eme of #overnment t$at no -(d#e or even t$e lo,est co(rt in t$is Rep(blic s$o(ld place $imself in a position
,$ere $is act(ations on matters s(bmitted to $im for action or resol(tion ,o(ld be s(b-ect to revie, and prior
approval and, ,orst still, reversal, before t$ey can $ave le#al effect, by any a(t$ority ot$er t$an t$e &o(rt of
Appeals or t$is S(preme &o(rt, as t$e case may be. Needless to say, t$is &o(rt feels very stron#ly t$at, it is
best t$at t$is practice is discontin(ed.
C%ERE)ORE, t$e $erein administrative complaint is $ereby dismissed. Let a copy of t$is resol(tion be
f(rnis$ed t$e Secretary of '(stice.
&oncepcion, Reyes, '.*.L., <ion, !a@alintal, Ealdivar and +illamor, ''., conc(r.
&astro and Tee@an@ee, ''., too@ no part.
)ernando, '., conc(rs f(lly and in addition s(bmits a brief separate opinion. !a@asiar, '., conc(rs ,it$ t$e
opinion !r. '(stice )ernando.