ESTRADA V.

SANDIGANBAYAN (MR)
G.R. No. 148560. November 19, 2001
Petitioner: Joseph Ejercito Estrada
Respondent: SB (Third division) and People
Bellosillo, J.
Summary
Ombudsman filed against Erap informations with the Sandiganbaya charging him under different laws,
one of them was the Plunder Law. He filed motion for reconsideration/reinvestigation under the Plunder
Law charges. This was denied and court found probable cause to to issue warrant of arrest. Erap filed
motion to quash because facts do not constitute an offense because the law suffers from vagueness.
Furthermore, the law removes the reasonable doubt standard as proof required for the offense under
the law is less than that required to prove the acts constituting it. Lastly, that the Congress has taken
out the mens rea element. The SC ruled this way on those issues:
Vaguness

As written, the Plunder Law contains ascertainable standards and well-defined parameters
which would enable the accused to determine the nature of his violation. Section 2 is
sufficiently explicit in its description of the acts, conduct and condition required or forbidden. It
enumerates the elements. Altho subject to proof, these factual assertions clearly show that the
elements of the crime are easily understood and provide adequate contrast between the
innocent and the prohibited acts. Upon such unequivocal assertions, petitioner is completely
informed of the accusations against him as to enable him to prepare for an intelligent defense.

Erap points out the lack of statutory definition for series, combination and pattern but
words are used in their ordinary sense unless the Congress shows intent to the contrary

A statute or act may be said to be vague when it lacks comprehensible standards that men of
common intelligence must necessarily guess at its meaning and differ in its application. In such
cases, it is repugnant to the Consti in 2 respects:
o It violates due process for failure to accord persons, especially the parties targeted by
it, fair notice of what conduct to avoid and
o It leaves law enforcers unbridled discretion in carrying out its provisions and becomes
an arbitrary flexing of the Government muscle.

But the doctrine does not apply as against legislations that are merely couched in imprecise
language but which nonetheless specify a standard though defectively phrased; or to those
that are apparently ambiguous yet fairly applicable to certain types of activities. The first may
be saved by proper construction, while no challenge may be mounted as against the second
whenever directed against such activities.

Also, these doctrines only apply to free speech cases and not penal statutes. With respect to
such statute, the established rule is that one to whom application of a statute is constitutional
will not be heard to attack the statute on the ground that impliedly it might also be taken as
applying to other persons or other situations in which its application might be unconstitutional.
On reasonable doubt

not everything alleged in the information needs to be proved beyond reasonable

doubt.Whatisre-quired to be proved beyond reasonable doubt is every element of the crime
charged. For example, Mr. Speaker, there is an enumeration of the things taken by the robber
in the informa-tionthree pairs of pants, pieces of jewelry. These need not be proved beyond
reasonable doubt, but these will not prevent the conviction of a crime for which he was
charged just because, say, instead of 3 pairs of diamond earrings the prosecution proved
two.Now,whatisrequiredtobeprovedbeyondreason-able doubt is the element of the offense.

Pattern is not an element so it does not need to be proven. Pattern is shown by the existence
of other elements
Malum in se

The deliberations show that it is malum in se; the application of attending circumstances from
the RPC show that it is malum in se; and the classification by the Congress that it is a heinuous
crime shows that it is malum in se

Facts

Erap is to be prosecuted under RA 7080 (Plunder Law) and he assails its validity because it (a)
suffers from vagueness, (b) dispenses with reasonable doubt standard and (c) abolishes mens
rea element. The important provisions of the law are Sec. 1, par.(d), sec. 2 and sec. 4,
hereunder quoted and will be used in the ratio:

Section 1. x x x x (d)Ill-gotten wealth means any asset, property, business, enterprise or

material possession of any person within the purview of Section Two (2) hereof, acquired
by him directly or indirectly through dummies, nominees, agents, subordinates and/or
business associates by any combination or series of the following means or similar
schemes: (means not impt for discussion)
1.(1)__Through misappropriation, conversion, misuse, or malversation of public funds or raids on the
public treasury; 2.(2)__By receiving, directly or indirectly, any commission, gift, share, percentage,
kickbacks or any other form of pecuniary benefit from any person and/or entity in connection with any
government contract or project or by reason of the office or position of the public office concerned; 3.
(3)__By the illegal or fraudulent conveyance or disposition of assets belonging to the National
Government or any of its subdivisions, agencies or instrumentalities, or government owned or
controlled corporations and their subsidiaries; 4.(4)__By obtaining, receiving or accepting directly or
indirectly any shares of stock, equity or any other form of interest or participation including the
promise of future employment in any business enterprise or undertaking; 5.(5)__By establishing
agricultural, industrial or commercial monopolies or other combinations and/or implementation of
decrees and orders intended to benefit particular persons or special interests; or 6.(6)__By taking
advantage of official position, authority, relationship, connection or
influence to unjustly enrich himself or themselves at the expense and to the damage and prejudice of
the Filipino people and the Republic of the Philippines.
Section 2. Definition of the Crime of Plunder, Penalties.Any public officer who, by himself or in
connivance with members of his family, relatives by affinity or consanguinity, business associates,
subordinates or other persons, amasses, accumulates or acquires ill-gotten wealth through a
combination or series of overt or criminal acts as described in Section 1 (d) hereof, in the
aggregate amount or total value of at least fifty million pesos (P50.000.00) shall be guilty of
the crime of plunder and shall be punished by reclusion perpetua to death. Any person who
participatedwith the said public officer in the commission of an offense contributing tothe crime of
plunder shall likewise be punished for such offense. In theimposition of penalties, the degree of
participation and the attendance ofmitigating and extenuating circumstances as provided by the
RevisedPenal Code shall be considered by the court. The court shall declare any and all ill-gotten
wealth and their interests and other incomes and assetsincluding the properties and shares of stocks
derived from the deposit orinvestment thereof forfeited in favor of the State (italics supplied).
Section 4. Rule of Evidence.For purposes of establishing the crime of plunder, it shall not be
necessary to prove each and every criminal act done by the accused in furtherance of the
scheme or conspiracy to amass, accumulate or acquire ill-gotten wealth, it being sufficient to
establish beyond reasonable doubt a pattern of overt or criminal acts indicative of the overall unlawful
scheme or conspiracy (italics supplied).
Background:

On April 4, 2001, Office of Ombudsman filed before SB 8 separate informations for (a) violation
of Plunder Law (b) RA 3019 (Anti-Gaft and Corrupt Practices Act), (c) Code of Conduct and
Ethical Standards for Public Officials and Employees (d) Perjury and (e) illegal use of alias

Erap filed omnibus motion for the remand of the case to the Ombudsman for preliminary
investigation of (d), and reconsideration/reinvestigation of the charges in (a)(b)(c)

SB issued resolution finding probable cause from Plunder to justify issue of warrant of arrest.
MR denied. Erap moved to quash the information on the grounds that the facts did not
constitute an indictable offense since it was unconstitutional for vagueness and also the info
charged for more than one offense. After opposition and reply, SB denied motion to quash
Issues

Plunder law unconstitutional for being vague? NO

The Plunder Law requires less evidence for proving the predicate crimes of plunder and
therefore violates the rights of the accused to due process? NO
Whether plunder is malum prohibitum? NO

Ratio
On vagueness. (topic altho I think the whole decision is impt)

As written, the Plunder Law contains ascertainable standards and well-defined parameters
which would enable the accused to determine the nature of his violation. Section 2 is
sufficiently explicit in its description of the acts, conduct and condition required or forbidden,
and prescribes the elements:
o That the offender is a public officer who acts by himself or in connivance with members
of his family, relatives by affinity or consanguinity, business associates, subordinates
or other persons;
o That he amassed, accumulated or acquired ill-gotten wealth through a combination or
series of the following overt or criminal acts: (see acts under section 2(d) above)
o That the aggregate amount or total value of the ill-gotten wealth amassed,
accumulated or acquired is at least P50,000,000.00.

As long as the law affords some comprehensible guide or rule that would inform those who are
subject to it what conduct would render them liable to its penalties, its validity will be
sustained. It must sufficiently guide the judge in its application; the counsel, in defending one
charged with its violation; and more importantly, the accused, in identifying the realm of the
proscribed conduct.

The amended info itself closely tracks the language of the law (no need to read it but here are
some details): Joseph Ejercito Estrada, a.k.a. ASIONG SALONGA and a.k.a. JOSE VELARDE.
together with Jose Jinggoy Estrada, Charlie Atong Ang, Edward Serapio, Yolanda T. Ricaforte,
Alma Alfaro, JOHN DOE a.k.a. Eleuterio Tan OR Eleuterio Ramos Tan or Mr. Uy, Jane Doe a.k.a.
Delia Rajas, and John DOES & Jane Does BY HIMSELF. DIRECTLY OR INDIRECTLY, ill-gotten
wealth in the aggregate amount or TOTAL VALUE of FOUR BILLION NINETY SEVEN MILLION
EIGHT HUNDRED FOUR THOUSAND ONE HUNDRED SEVENTY THREE PESOS AND SEVENTEEN
CENTAVOS (P4,097,804,173.17). The specific acts were also enumerated

Altho subject to proof, these factual assertions clearly show that the elements of the crime are
easily understood and provide adequate contrast between the innocent and the prohibited
acts. Upon such unequivocal assertions, petitioner is completely informed of the accusations
against him as to enable him to prepare for an intelligent defense.

Petitioner bewails the failure of law to give a statutory definition for combination and series
and pattern
o A statute is not rendered uncertain and void merely because general terms are used
therein, or because of the employment of terms without defining them;6 much less do
we have to define every word we use.
o Congress inability to so define the words employed in a statute will not necessarily
result in the vagueness or ambiguity of the law so long as the legislative will is clear, or
at least, can be gathered from the whole act, which is distinctly expressed in the
Plunder Law.
o Words of a statute will be interpreted in their natural, plain and ordinary acceptation
and signification, unless it is evident that the legislature intended a technical or special
legal meaning to those words. Court stated the Websters New Collegiate Dictionary
meanings:

Combinationthe result or product of combining; the act or process of

combining. To combine is to bring into such close relationship as to obscure
individual characters.

Seriesa number of things or events of the same class coming one after
another in spatial and temporal succession.
o Court also looked into the legislative delibs. Basically they said:

Thus when the Plunder Law speaks of combination, it is referring to at least

two (2) acts falling under different categories of enumeration provided in Sec.
1, par. (d),

To constitute a serie s, there must be two (2) or more overt or criminal acts
falling under the same category of enumeration found in Sec. 1, par. (d),

As for pattern, it is sufficiently defined in sec. 4, in relation to sec. 1 par. (d) and sec. 2:

X x x a pattern consists of at least a combination or series of overt or criminal

acts enumerated in subsections (1) to (6) of Sec. 1 (d). Secondly, pursuant to
Sec. 2 of the law, the pattern of overt or criminal acts is directed towards a
common purpose or goal which is to enable the public officer to amass,
accumulate or acquire illgotten wealth. And thirdly, there must either be an
overall unlawful scheme or conspiracy to achieve said common goal.
Thus, reliance on void for vagueness is misplaced. It can only be invoked against that specie of
legislation that is utterly vague on its face, i.e., that which cannot be clarified either by a
saving clause or by construction.
A statute or act may be said to be vague when it lacks comprehensible standards that men of
common intelligence must necessarily guess at its meaning and differ in its application. In such
cases, it is repugnant to the Consti in 2 respects:
o It violates due process for failure to accord persons, especially the parties targeted by
it, fair notice of what conduct to avoid and
o It leaves law enforcers unbridled discretion in carrying out its provisions and becomes
an arbitrary flexing of the Government muscle.
But the doctrine does not apply as against legislations that are merely couched in imprecise
language but which nonetheless specify a standard though defectively phrased; or to those
that are apparently ambiguous yet fairly applicable to certain types of activities. The first may
be saved by proper construction, while no challenge may be mounted as against the second
whenever directed against such activities.
With more reason, the doctrine cannot be invoked where the assailed statute is clear and free
from ambiguity, as in this case.
We adopt the observations of Mr. Justice Vicente Mendoza:
o The void-for-vagueness doctrine states that a statute which either forbids or requires
the doing of an act in terms so vague that men of common intelligence must
necessarily guess at its meaning and differ as to its application, violates the first
essential of due process of law. The overbreadth doctrine, on the other hand, decrees
that a governmental purpose may not be achieved by means which sweep
unnecessarily broadly and thereby invade the area of protected freedoms.
o A facial challenge is allowed to be made to a vague statute and to one which is
overbroad because of possible chilling effect upon protected speech. This rationale
does not apply to penal statutes. Criminal statutes have general in terrorem effect
resulting from their very existence, and, if facial challenge is allowed for this reason
alone, the State may well be prevented from enacting laws against socially harmful
conduct. In the area of criminal law, the law cannot take chances as in the area of free
speech.
o The overbreadth and vagueness doctrines then have special application only to free
speech cases. They are inapt for testing the validity of penal statutes.
o With respect to such statute, the established rule is that one to whom application of a
statute is constitutional will not be heard to attack the statute on the ground that
impliedly it might also be taken as applying to other persons or other situations in
which its application might be unconstitutional.
A fortiori, petitioner cannot feign ignorance of what the Plunder Law is all about. Being one of
the Senators who voted for its passage, petitioner must be aware that the law was extensively
deliberated upon by the Senate and its appropriate committees by reason of which he even
registered his affirmative vote with full knowledge of its legal implications and sound
constitutional anchorage.
In Gallego v. SB, the law assailed was RA 3019 (graft and corrupt practices)the word
unwarranted in un warranted benefits was assailed as highly imprecise. The court ruled:
o

o
o
o

The word unwarranted is not uncertain. It seems lacking adequate or official support;
unjustified; unauthorized (Webster, Third International Dictionary, p. 2514); or without
justification or adequate reason
The phrases manifest partiality, evident bad faith, and gross and inexcusable
negligence merely describe the different modes by which the offense penalized in
Sec. 3, par. (e), of the statute may be committed
It is not at all difficult to comprehend that what the aforequoted penal provisions
penalize is the act of a public officer, in the discharge of his official, administrative or

judicial functions, in giving any private party benefits, advantage or preference which
is unjustified, unauthorized or without justification or adequate reason, through
manifest partiality, evident bad faith or gross inexcusable negligence.
On reasonable doubt standard.

the petitioner advances the highly stretched theory that Sec. 4 of the Plunder Law circumvents
the immutable obligation of the prosecution to prove beyond reasonable doubt the predicate
acts constituting the crime of plunder when it requires only proof of a pattern of overt or
criminal acts showing unlawful scheme or conspiracy (check sec. 4 again)

this is not so. There is always presumption of innocence

according to the legislative delibs: not everything alleged in the information needs to be
proved beyond reasonable doubt.Whatisre-quired to be proved beyond reasonable doubt is
every element of the crime charged. For example, Mr. Speaker, there is an enumeration of the
things taken by the robber in the informa-tionthree pairs of pants, pieces of jewelry. These
need not be proved beyond reasonable doubt, but these will not prevent the conviction of a
crime for which he was charged just because, say, instead of 3 pairs of diamond earrings the
prosecution proved two.Now,whatisrequiredtobeprovedbeyondreason-able doubt is the
element of the offense.

To illustrate, supposing that the accused is charged in an Information for plunder with having
committed fifty (50) raids on the public treasury. The prosecution need not prove all these fifty
(50) raids, it being sufficient to prove by pattern at least two (2) of the raids beyond
reasonable doubt provided only that they amounted to at least P50,000,000.00.

pattern of overt or criminal acts indicative of the overall unlawful scheme or conspiracy
inheres in the very acts of accumulating, acquiring or amassing hidden wealth.

The prosecution is therefore not required to make a deliberate and conscious effort to prove
pattern as it necessarily follows with the establishment of a series or combination of the
predicate acts.

All the essential elements of plunder can be culled and understood from its definition in Sec. 2,
in relation to Sec. 1, par. (d), and pattern is not one of them.

Section 4 itslef starts with For purposes of establishing the crime of plunderIt purports to
do no more than prescribe a rule of procedure for the prosecution of a criminal case for
plunder.

Plus, even if section 4 is really infirm, the law has a separability clause in sec. 7
Malum In se or malum prohibtum?

It is malum in se. The amended information alleges that the crime of plunder was committed
willfully, unlawfully and criminally.

Delibs on S.B. 733: Senator Taada was only saying that where the charge is conspiracy to
commit plunder, the prosecution need not prove each and every criminal act done to further
the scheme or conspiracy, it being enough if it proves beyond reasonable doubt a pattern of
overt or criminal acts indicative of the overall unlawful scheme or conspiracy. As far as the acts
constituting the pattern are concerned, however, the elements of the crime must be proved
and the requisite mens rea must be shown.

The application of mitigating and extenuating circumstances in the Revised Penal Code to
prosecutions under the Anti-Plunder Law indicates quite clearly that mens rea is an element
Finally, any doubt as to whether the crime of plunder is a malum in se must be deemed to
have been resolved in the affirmative by the decision of Congress in 1993 to include it among
the heinous crimes punishable by reclusion perpetua to death