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* EN BANC.
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is not appointed by the President and the fact that the former
does not receive any compensation do not at all give the said
position an ex officio character such that the occupant thereof
becomes exempt from the constitutional proscription on the
holding of multiple offices. As held in
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CARPIO, J.:
The Case
The Facts
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The Issues
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4 Rollo, p. 181.
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3. NEUTRALITY—In order to continue to enjoy the
confidence of all, the Movement may not take sides in
hostilities or engage at any time in controversies of a
political, racial, religious or ideological nature.
4. INDEPENDENCE—The Movement is independent. The
National Societies, while auxiliaries in the humanitarian
services of their governments and subject to the laws of
their respective countries, must always maintain their
autonomy so that they may be able at all times to act in
accordance with the principles of the Movement.
5. VOLUNTARY SERVICE—It is a voluntary relief movement
not prompted in any manner by desire for gain.
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11 Article 4 of the Statutes of the International Red Cross and Red
Crescent Movement reads:
ARTICLE 4
Conditions for Recognition of National Societies
In order to be recognized in terms of Article 5, paragraph 2 b) as a
National Society, the Society shall meet the following conditions:
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The reason for this autonomy is fundamental. To be
accepted by warring belligerents as neutral workers during
international or internal armed conflicts, the PNRC
volunteers must not be seen as belonging to any side of the
armed conflict. In the Philippines where there is a
communist insur-
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12 The Fundamental Principles of the Red Cross and Red Crescent,
ICRC Publication, p. 17.
13 Although under Section 4(c) of the PNRC Charter, as amended, the
PNRC is allotted one lottery draw yearly by the Philippine Charity
Sweepstakes for the support of its disaster relief operations, in addition to
its existing lottery draws for the Blood Program, such allotments are
donations given to most charitable organizations.
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appointment of other officers lower in rank in the President alone, in the courts, or
in the heads of departments, agencies, commissions, or boards.
The President shall have the power to make appointments during the recess of
the Congress, whether voluntary or compulsory, but such appointments shall be
effective only until after disapproval by the Commission on Appointments or until
the next adjournment of the Congress.
15 Endriga v. Rufino, G.R. Nos. 139554 & 139565, 21 July 2006, 496 SCRA 13.
16 Id., at pp. 50-57.
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Under Section 17, Article VII of the Constitution,17 the
President exercises control over all government offices in
the Executive branch. If an office is legally not under
the control of the President, then such office is not
part of the Executive branch. In Rufino v. Endriga,18
the Court explained the President’s power of control over
all government offices as follows:
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The PNRC is not government-owned but privately
owned. The vast majority of the thousands of PNRC
members are private individuals, including students.
Under the PNRC Charter, those who contribute to the
annual fund campaign of the PNRC are entitled to
membership in the PNRC for one year. Thus, any one
between 6 and 65 years of age can be a PNRC member for
one year upon contributing P35, P100, P300, P500 or
P1,000 for the year.20 Even foreigners, whether residents or
not, can be members of the PNRC. Section 5 of the PNRC
Charter, as amended by Presidential Decree No. 1264,21
reads:
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succession with the power to sue and be sued; to own and hold such real
and personal estate as shall be deemed advisable and to accept bequests,
donations and contributions of property of all classes for the purpose of
this Corporation hereinafter set forth; to adopt a seal and to alter and
destroy the same at pleasure; and to have the right to adopt and to use, in
carrying out its purposes hereinafter designated, as an emblem and
badge, a red Greek cross on a white ground, the same as has been
described in the Geneva Conventions, and adopted by the several nations
ratifying or adhering thereto; to ordain and establish by-laws and
regulations not inconsistent with the laws of the Republic of the
Philippines, and generally to do all such acts and things as may be
necessary to carry into effect the provisions of this Act and promote the
purposes of said organization; and the corporation hereby created is
designated as the organization which is authorized to act in matters of
relief under said Convention. In accordance with the Geneva Conventions,
the issuance of the distinctive Red Cross emblem to medical units and
establishments, personnel and materials neutralized in time of war shall
be left to the military authorities. The red Greek cross on a white ground,
as has been described by the Geneva Conventions is not, and shall not be
construed as a religious symbol, and shall have equal efficacy and
applicability to persons of all faiths, creeds and beliefs. The operational
jurisdiction of the Philippine National Red Cross shall be over the entire
territory of the Philippines.
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tions shall fix the relationship of the Chapters to the Corporation, define
their territorial jurisdictions, and determine the number of delegates for
each chapter based on population, fund campaign potentials and service
needs.
40 SEC. 13. The Corporation shall, at the end of every calendar year
submit to the President of the Philippines an annual report containing the
activities of the Corporation showing its financial condition, the receipts
and disbursements.
41 The valid provisions are Sections 4(b) and (c), 14, 15, 16, and 17:
SEC. 4. In furtherance of the purposes mentioned in the preceding
sub-paragraphs, the Philippine National Red Cross shall:
x x x
b. Be exempt from payment of all duties, taxes, fees, and other
charges of all kinds on all importations and purchases for its exclusive
use, on donations for its disaster relief work and other Red Cross services,
and in its benefits and fund raising drives all provisions of law to the
contrary notwithstanding.
c. Be allotted by the Philippine Charity Sweepstakes Office one
lottery draw yearly for the support of its disaster relief operations in
addition to its existing lottery draws for the Blood Program.
SEC. 14. It shall be unlawful for any person to solicit, collect or
receive money, materials, or property of any kind by falsely representing
or pretending himself to be a member, agent or representative of the
Philippine National Red Cross.
SEC. 15. The use of the name Red Cross is reserved exclusively to
the Philippine National Red Cross and the use of the emblem of the red
Greek cross on a white ground is reserved exclusively to the Philippine
National Red Cross, medical services of the Armed Forces of the
Philippines and such other medical facilities or other institutions as may
be author-
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unincorporated PNRC is the local National Society of the
International Red Cross and Red Crescent Movement, and
thus entitled to the benefits, exemptions and privileges set
forth in the PNRC Charter. The other provisions of the
PNRC Charter implement the Philippine Government’s
treaty obligations under Article 4(5) of the Statutes of the
International Red Cross and Red Crescent Movement,
which provides that to be recognized as a National Society,
the Society must be “duly recognized by the legal
government of its country on the basis of the Geneva
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SO ORDERED.
DISSENTING OPINION
NACHURA, J.:
I am constrained to register my dissent because the
ponencia does not only endorse an unmistakably flagrant
transgression of the Constitution but also unwittingly
espouses the destruction of the Philippine National Red
Cross (PNRC) as an institution. With all due respect, I
disagree with the principal arguments advanced in the
ponencia to justify Senator
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I.
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2 See Del Rosario v. Montaña, G.R. No. 134433, May 28, 2004, 430
SCRA 109, 116; Del Mar v. Philippine Amusement and Gaming Corp., 400
Phil. 307, 326-327, 346 SCRA 485 (2000); Sen. Defensor-Santiago v.
Guingona, Jr., 359 Phil. 276, 295-296; 298 SCRA 756 (1998).
3 G.R. No. 170338, December 23, 2008, 575 SCRA 170.
4 G.R. No. 168338, February 15, 2008, 545 SCRA 441.
5 Id.
6 Garcillano v. the House of Representatives Committees on Public
Information, Public Order and Safety, National Defense and Security,
Information and Communications Technology, and Suffrage and Electoral
Reforms, supra note 3.
101
II.
A brief history of the PNRC
A historical account of the PNRC’s creation is
imperative in order to comprehend the nature of the
institution and to put things in their proper perspective.
Even before its incorporation in 1947, the Red Cross, as
an organization, was already in existence in the
Philippines. Apolinario Mabini played an important role in
the approval by the Malolos Republic, on February 17,
1899, of the Constitution of the National Association of the
Red Cross. Appointed to serve as its president was Hilario
del Rosario de Aguinaldo. On August 29, 1900,
International Delegate of Diplomacy Felipe Agoncillo met
with International Committee of the Red Cross (ICRC)
President Gustave Moynier to lobby for the recognition of
the Filipino Red Cross Society and the application of the
1864 Geneva Convention to the country during the
Filipino-American war.7 The Geneva Convention of August
22, 1864 dealt mainly on the relief to wounded soldiers
without any distinction as to nationality, on the neutrality
and inviolability of medical personnel and medical
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9 Supra note 7.
10 Entitled “AN ACT TO INCORPORATE THE PHILIPPINE NATIONAL RED CROSS.”
11 464 Phil. 439; 419 SCRA 363 (2004).
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The PNRC was incorporated under R.A. No 95, a special
law. Following the logic in Feliciano, it cannot be anything
but a GOCC.
R.A. No. 95 has undergone amendment through the
years.14 Did the amendment of the PNRC Charter have the
effect of transforming it into a private corporation?
In Camporedondo v. National Labor Relations
Commission,15 we answered this in the negative. The
Court’s ruling in that case, reiterated in Baluyot v.
Holganza,16 is direct, definite and clear, viz.:
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14 The amendatory laws are Republic Act No. 855 (January 11, 1953),
Republic Act No. 6373 (August 16, 1971) and Presidential Decree No. 1264
(December 15, 1977).
15 370 Phil. 901, 906; 312 SCRA 47, 50-51 (1999).
16 382 Phil. 131; 325 SCRA 248 (2000).
17 Id., at pp. 136-137; p. 252.
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18 Emphasis supplied.
19 377 Phil. 1019; 320 SCRA 188 (1999).
20 See for instance Proclamation No. 50, which categorized GOCCs into
parent and subsidiary corporations, cited in Philippine National
Construction Corporation v. Pabion, et al., supra.
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23 Emphasis supplied.
24 See Section 4(c) of R.A. No. 95, as amended.
25
<http://www.redcross.org/portal/site/en/menuitem.86f46a12f382290517a8f210b80f78a0/?
vgnextoi d=271a2aebdaadb110VgnVCM10000089f0870aRCRD> (visited
July 9, 2009).
26 385 U.S. 355, 358-360; 87 S.Ct. 464, 467 (1966).
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27 Id.
28 829 F.Supp. 1290, 1311 (1993)
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I respectfully submit that we are not prepared to reverse
the ruling of this Court in the said cases. To rule otherwise
will create an unsettling ripple effect in numerous
decisions of this Court, including those dealing with the
jurisdiction of the Civil Service Commission (CSC) and the
authority of the Commission on Audit (COA), among
others.
Furthermore, to subscribe to the proposition that
Section 1 of the PNRC Charter, which deals with the
creation and incorporation of the organization, is invalid
for being violative of the aforesaid constitutional
proscription, but the rest of the provisions in the PNRC
Charter remains valid, is to reach an absurd situation in
which obligations are imposed on and a framework for its
operation is laid down for a legally non-existing entity. If
Section 1 of the PNRC Charter were impulsively
invalidated, what will remain are the following provisions,
which will have no specific frame of reference─
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exclusive use, on donations for its disaster relief work and other
Red Cross services, and in its benefits and fund raising drives all
provisions of law to the contrary notwithstanding.
c. Be allotted by the Philippine Charity Sweepstakes Office
one lottery draw yearly for the support of its disaster relief
operations in addition to its existing lottery draws for the Blood
Program.
SECTION 5. Membership in the Philippine National Red
Cross shall be open to entire population in the Philippines
regardless of citizenship. Any contribution to the Philippine
National Red Cross Annual Fund Campaign shall entitle the
contributor to membership for one year and said contribution
shall be deductible in full for taxation purposes.
SECTION 6. The governing powers and authority shall be
vested in a Board of Governors composed of thirty members, six of
whom shall be appointed by the President of the Philippines,
eighteen shall be elected by chapter delegates in biennial
conventions and the remaining six shall be elected by the twenty-
four members of the Board already chosen. At least one but not
more than three of the Presidential appointees shall be chosen
from the Armed Forces of the Philippines.
a. The term of office of all members of the board of Governors
shall be four years. Any member of the Board of Governor who
has served two consecutive full terms of four years each shall be
ineligible for membership on the Board for at least two years; any
term served to cover unexpired terms of office of any governor will
not be considered in this prohibition in serving two consecutive
full terms, and provided, however, that terms served for more
than two years shall be considered a full term.
b. Vacancies in the Board of Governors caused by death or
resignation shall be filled by election by the Board of Governors at
its next meeting, except that vacancies among the Presidential
appointees shall be filled by the President.
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after all the members of the Board of Governors have been chosen
and have qualified.
SECTION 8. The Biennial meeting of chapter delegates
shall be held on such date and such place as may be specified by
the Board of Governors to elect members of the Board of
Governors and advice the Board of Governors on the activities of
the Philippine National Red Cross; Provided, however, that
during periods of great emergency, the Board of Governors in its
discretion may determine that the best interest of the corporation
shall be served by postponing such biennial meeting.
SECTION 9. The power to ordain, adopt and amend by-laws
and regulations shall be vested in the Board of Governors.
SECTION 10. The members of the Board of Governors, as
well as the officers of the corporation, shall serve without
compensation. The compensation of the paid staff of the
corporation shall be determined by the Board of Governors upon
the recommendation of the Secretary General.
SECTION 11. As a national voluntary organization, the
Philippine National Red Cross shall be financed primarily by
contributions obtained through solicitation campaigns throughout
the year which shall be organized by the Board of Governors and
conducted by the Chapters in their respective jurisdictions. These
fund raising campaigns shall be conducted independently of other
fund drives and service needs.
SECTION 12. The Board of Governors shall promulgate
rules and regulations for the organization of local units of the
Philippine National Red Cross to be known as Chapters. Said
rules and regulations shall fix the relationship of the Chapters to
the Corporation, define their territorial jurisdictions, and
determine the number of delegates for each chapter based on
population, fund campaign potentials and service needs.
SECTION 13. The Corporation shall, at the end of every
calendar year submit to the President of the Philippines an
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SECTION 15. The use of the name Red Cross is reserved
exclusively to the Philippine National Red Cross and the use of
the emblem of the red Greek cross on a white ground is reserved
exclusively to the Philippine National Red Cross, medical services
of the Armed Forces of the Philippines and such other medical
facilities or other institutions as may be authorized by the
Philippine National Red Cross as provided under Article 44 of the
Geneva Conventions. It shall be unlawful for any other person or
entity to use the words Red Cross or Geneva Cross or to use the
emblem of the red Greek cross on a white ground or any
designation, sign, or insignia constituting an imitation thereof for
any purpose whatsoever.
SECTION 16. As used in this Decree, the term person shall
include any legal person, group, or legal entity whatsoever nature,
and any person violating any section of this Article shall, upon
conviction therefore be liable to a find of not less than one
thousand pesos or imprisonment for a term not exceeding one
year, or both, at the discretion of the court, for each and every
offense. In case the violation is committed by a corporation or
association, the penalty shall devolve upon the president, director
or any other officer responsible for such violation.
SECTION 17. All acts or parts of acts which are inconsistent
with the provisions of this Decree are hereby repealed.
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Settled is the doctrine that all reasonable doubts should
be resolved in favor of the constitutionality of a statute. 33
The presumption is that the legislature intended to enact a
valid, sensible and just law and one which operates no
further than may be necessary to effectuate the specific
purpose thereof.34 Justice Carpio, in Kapisanan ng mga
Kawani ng Energy Regulatory Board v. Barin,35 even
echoes the principle that “to justify the nullification of a
law, there must be a clear and unequivocal breach of the
Constitution.”
Here, as in Camporedondo and Baluyot, there is no clear
showing that the PNRC Charter runs counter to the
Constitution. And, again in the same tone as in
Montesclaros v. Commission on Elections, “[the parties] are
not even assailing the constitutionality of [the PNRC
Charter].” A becoming courtesy to a co-equal branch should
thus impel this Court to refrain from unceremoniously
invalidating a legislative act.
Deleterious effects will result
if PNRC is declared a private
corporation, among which are
its consequent destruction as
an institution and the Republic’s
shirking its obligation under
the Geneva Convention
The hypothesis that PNRC is a private corporation has
far-reaching implications. As mentioned earlier, it will be a
reversal of the doctrines laid down in Camporedondo and
Baluyot, and it will have an unsettling ripple effect on
other numerous decisions of the Court, including those
dealing with the jurisdiction of the CSC and the authority
of the COA.
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Not only that. If PNRC is considered as a private
corporation, then, this will lead to its ultimate demise as an
institution. Its employees will no longer be covered by the
Government Service Insurance System. It can no longer be
extended tax exemptions and official immunity and it
cannot anymore be given support, financial or otherwise,
by the National Government, the local government units
and the PCSO; because these will violate not only the equal
protection clause in the Constitution, but also penal
statutes.
And if PNRC is consequently obliterated, the Republic
will be shirking its responsibilities and obligations under
the Geneva Convention.
This Court then has to be very careful in the resolution
of this case and in making a declaration that will have
unintended yet deleterious consequences. The Court must
not arbitrarily declare a law unconstitutional just to save a
single individual from the unavoidable consequences of his
transgression of the Constitution, even if it be
unintentional and done in good faith.
The respondent holds two
incompatible offices in
violation of the Constitution
Section 13, Article VI of the Constitution explicitly
provides that “no Senator or Member of the House of
Representatives may hold any other office or employment
in the government, or any subdivision, agency or
instrumentality thereof, including [GOCCs] or their
subsidiaries, during
his term without forfeiting his seat.”36 In Adaza v. Pacana,
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his seat. Neither shall he be appointed to any office which may have been
created or the emoluments thereof increased during the term for which he
was elected.”
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49 See R.A. No. 7640, Executive Order (E.O.) No. 305, Series of 1987;
R.A. No. 8292, R.A. No. 9500, and the JELAC Memorandum of
Agreement.
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