dap ruling

8/11/2019 Dap Ruling

1/62

rl

G.R. No. 209287 -

MARIA CAROLINA

P.

ARAULLO, Chairperson,

Bagong Alyansang Makabayan; JUDY M.

TAGUIW

ALO, Professor,

University

of

the

Philippines Diliman,

Co-Chairperson, Pagbabago;

HENRI

KAHN,

Concerned

Citizens Movement;

REP. LUZ

ILAGAN,

Gabriela Women s

Party Representative;

REP. CARLOS

ISAGANI

ZARATE, Bayan Muna Partylist

Representative;

RENATO

M.

REYES, JR., Secretary General

of

BAYAN; MANUEL K. DAYRIT,

Chairman, and Kapatiran Party;

VENCER MARI

E.

CRISOSTOMO,

Chairperson, Anakbayan;

and VICTOR VILLANUEVA,

Conyenor

Youth Act

Now v.

BENIGNO SIMEON

C. AQUINO

III, President of

the Republic of the Philippines;

PA

QUITO N.

OCHOA,

JR.,

Executive

Secretary; and FLORENCIO B. ABAD,

Secretary

of

the

Department

of

Budget

and

Management.

G.R. No. 209135 - AUGUSTO L.

SYJUCO, JR.,

Ph.D. v.

FLORENCIO

B. ABAD, in his capacity

as

the

Secretary

of

Department

of

Budget and

Management; and

HON.

FRANKLIN

MAGTUNAO DRILON, in his

capacity

as

Senate

President

of

the

Philippines.

G.R. No. 209136 - MANUELITO R. LUNA v. SECRETARY

FLORENCIO ABAD, in his official capacity as

Head

of the Department

of Budget and Management; and EXECUTIVE SECRETARY

PA

QUITO

OCHOA,

in his official capacity as

Alter

Ego

of

the

President.

G.R. No. 209155 - ATTY. JOSE

MALVAR VILLEGAS,

JR. v.

THE

HONORABLE EXECUTIVE

SECRETARY PAQUITO

N. OCHOA,

JR.;

and

THE SECRETARY

OF BUDGET AND

MANAGEMENT

FLORENCIO B. ABAD.

G.R. No. 209164 -

PHILIPPINE CONSTITUTION ASSOCIATION

PHILCONSA),

represented

by DEAN

FROILAN

M. BACUNGAN,

BENJAMIN

E.

DIOKNO

and LEONOR

M.

BRIONES

v.

DEPARTMENT

OF

BUDGET

AND

MANAGEMENT and/or HON.

FLORENCIO B. ABAD.

G.R. No. 209260 -

INTEGRATED BAR

OF THE

PHILIPPINES

IBP)

v.

SECRETARY

FLORENCIO B. ABAD OF

THE DEPARTMENT

OF

BUDGET

AND

MANAGEMENT

DBM).

G.R. No. 209442 - GRECO ANTONIOUS BEDA B. BELGICA,

BISHOP REUBEN

M. ABANTE

and

REV.

JOSE

L.

GONZALEZ

v.

PRESIDENT

BENIGNO

SIMEON

C. AQUINO

III,

THE SENATE OF

THE PHILIPPINES, represented

by

SENATE PRESIDENT

FRANKLIN M. DRILON;

THE HOUSE OF

REPRESENTATIVES,

represented

by

SPEAKER FELICIANO BELMONTE, JR.; THE

EXECUTIVE

OFFICE, represented by

EXECUTIVE SECRETARY


2/62

Separate Opinion

2

G.R. Nos. 209287, 209135,

et al

PAQUITO

N.

OCHOA,

JR.; THE

DEPARTMENT

OF

BUDGET

AND

MANAGEMENT, represented

by

SECRETARY

FLORENCIO ABAD;

THE DEPARTMENT

OF

FINANCE, represented

by SECRETARY

CESAR V. PURISIMA;

and THE

BUREAU

OF

TREASURY,

represented

by

ROSALIA

V.

DE LEON.

G.R. No. 209517- CONFEDERATION FOR UNITY, RECOGNITION

AND

ADVANCEMENT

OF

GOVERNMENT EMPLOYEES

COURAGE),

represented

by its 1st Vice

President,

SANTIAGO

DASMARINAS,

JR.; ROSALINDA NARTATES,

for herself and as

National President of the Consolidated Union of Employees National

Housing

Authority

(CUE-NHA);

MANUEL BACLAGON, for

himself

and as

President

of

the

Social

Welfare

Employees Association

of the

Philippines,

Department of

Social

Welfare

and Development

Central

Office

SWEAP-DSWD CO); ANTONIA PASCUAL, for herself and as

National

President

of

the

Department of Agrarian

Reform

Employees

Association (DAREA); ALBERT MAGALANG, for himself

and

as

President of the Environment

and

Management

Bureau

Employees

Union EMBEU); and MARCIAL ARABA,

for

himself and

as

President

of the Kapisanan Para Sa Kagalingan ng

mga

Kawani ng MMDA

KKK-MMDA)

v.

BENIGNO SIMEON C. AQUINO III, President

of

the Republic of the Philippines, PAQUITO OCHOA, JR., Executive

Secretary;

and

HON.

FLORENCIO B. ABAD, Secretary of the

Department

of

Budget and Management.

G.R. No. 209569 - VOLUNTEERS AGAINST

CRIME

AND

CORRUPTION (VACC),

represented

by DANTE LA. JIMENEZ v.

PAQUITO N. OCHOA, Executive Secretary,

and

FLORENCIO B.

ABAD, Secretary of the Department of Budget

and

Management.

Promulgated:

Ju1y 1 2014 .

J /

SEPARATE OPINION

BRION, J :

Preliminary Statement

I submit this Concurring and Dissenting Opinion to reflect my

views on the constitutionality

of

the Disbursement Acceleration Program


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:DAP; $*< )&1 )=#>"="*&)*? @A


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P150 Billion or almost 15 times the PDAF caseREentanglement with the

unconstitutional PDAF; personalities at thevery highest level in both the

Executive and the Legislative Departments of governmentR $*)B IA*"1 A*)B $%" $& 1&$W" $*< H"7 $1 $ *$&)+*7 B$**+& $*< 1G+A>< *+& @"

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B+*1&)&A&)+*$> system of checks and balances $*< +I &G" separation of

powers &G$& )*" "II"B& &G$&

+A% %A>)*?7 ")&G"% H$M7 H)>> G$O" +* &G" )*1&)&A&)+*1 $*< +II)B)$>1 )*O+>O"& &G$& @"I+%" $*M =$11)O"

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peoples inevitable question could then be: who else is there to trust?

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+I )&1 )*&"?%)&M H+A>< @" )*&$B&. F+H$%< &G+%+A?G>M

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FG)1 1#)%)& H$1 $##$%"*&>M &G" %"$1+* HGM &G" ="=@"%S)*SBG$%?"7 J.

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T%+?%$=7 (B&. 67 238,7 $& G&HHH.?+O.#Gd238,d83d36dZ$S+*S&G"S)


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L11A"1

]* &G" B+*1&)&A&)+*$>)&M $*< O$>)"%$&)+* T%+?%$= :UKT;7 0$&)+*$> CA


6/62

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)* =M O)"H7 H$1 $ O"%M ?++< B$>> +* J. C"%1$=)*N1 #$%& $1 $ B+*1"ZA"*B"1 +I +A% %A>)*? B$**+& @" >"I& +A& H)&G+A& %)1W)*? &G"

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$; &G" D+A%& G$1 `A%)1$&"1 &G" #%)*B)#>"1 +I BG"BW1 $*< @$>$*B"1 $*)&M +I &G"

TUKV $*< I+A*< &G" 1M1&"= &+ @" A*B+*1&)&A&)+*$> I+% )&1 1"#$%$&)+* +I #+H"%1 $*< &G" BG"BW $*$*B" #%)*B)#>"1. FG"1" B+*1&)&A&)+*$> &%$*1?%"11)+*1 %"1A>&"< I%+= &G"

)%%"?A>$%)&)"1 $*< $*+=$>)"1 &G$& $&&"*"="*&$&)+*.

CA& "O"* @"I+%" &G" D+A%& B+A>< %A>" +* &G" B+*1&)&A&)+*$>)&M +I &G"

TUKV7 &G" B+*&%+O"%1M &G$& )& ?"*"%$&"< G$< 1#)>>"< )*&+ $*< G$< B%"$&"M +1"< &+ &G" #A@>)B HG"* $ 1"*$&+%7 BG$%?"< H)&G $*+=$>)"1%"?$%"$% G)1 *$=" &G%+A?G $ #%)O)>"?"

1#""BG.Y

L* %"1#+*1"7 &G" ?+O"%*="*& :&G%+A?G &G" U"#$%&="*& +I CA


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FG" UKT7 >)W" &G" TUKV7 )*O+>O"< &G" )=#>"="*&$&)+* +I &G" *$&)+*$>

@A


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"*$@>"< &G" hQ"BA&)O" &+ 1"BA%" &G" O+&"1 I+% &G" B+*O)B&)+* +I I+%="% DG)"I

JA1&)B" /"*$&+ D+%+*$ $*< &G" I)>)*? +I )=#"$BG="*& BG$%?"1 $?$)*1& I+%="%

(=@A" &G" )=#"$BG="*& B$1" $?$)*1& &G"

I+%="% DG)"I JA1&)B" H$1 @"I+%" &G" !"*$&".82 L*&"%"1&)*?>M7 @+&G 1"*$&+%1

H"%" %"B)#)"*&1 +I TUKV IA*"="*&$&)+*

+I TUKV IA*> $@+A& &G"

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)>>"?$>)&)"1 ^ @$1"< +* B+*?%"11)+*$> )*O"1&)?$&)+*189$*< &G" )*)&)$> BG$%?"1

%"B"*&>M @%+A?G& @M &G" (=@A"O">1 +I &G" hQ"BA&)O".86

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&G" U)1@A%1"="*& KBB">"%$&)+* T%+?%$= :UKT; H$1 $ !&$*$7 J%.7


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of corruption@M +*" +% $ I"H ?+O"%*="*& +II)B)$>17 @A& @M $ host of public

officials HG+1" IA*B&)+*1 $*< )*&"%"N1 &%A1&7 &G" D+A%& =A1& *+H M

"Q"%B)1" )&1 $%"

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#%+B""< A*>+H)*? 1&%AB&A%"X

A.

Factual Antecedents

1.

The DAP and its origins

a. The Memoranda from DBM Secretary Florencio

Abad to the President

B. Preliminary Matters

1.

The Courts expanded power of judicial review

2.

Prima facie showing of grave abuse of discretion

a. The lack of audit findings does not negate grave

abuse of discretion

3.

Transcendental importance of the issues presented by

the petitions

4.

Justiciability and Political Questions

5.

The Courts boundary-keeping role in times of political

upheaval

C. Substantive Matters

1.

The DAP violates the principles of checks and balances

and the separation of powers that the 1987 Constitution

integrated in the budgetary process

a. The principle of separation of powers and checks

and balances in the budgetary process

84 FG" 8456 D+*1&)&A&)+* G$1 " +* fKBB+A*&$@)>)&M +I TA@>)B (II)B"%17g7

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@" $BB+A*&$@>" &+ &G" #"+#>"7 1"%O" &G"= H)&G A&=+1& %"1#+*1)@)>)&M7 )*&"?%)&M7 >+M$>&M7 $*"$1"< $* officialstatement,&G%+A?G &G" UCP H"@1)&"7 "Q#>$)*)*? &G$& &G" $=+A*&1 %">"$1""$1"1 I%+= UKT H"%" =$"?)1>$&+%1g @"B$A1" the DAP had been in

existence since the latter part of 2011.

L* &G" B+A%1" +I G"$%)*? &G"1" #"&)&)+*17 &G" %"1#+*+%"*B)+ K@$"$1"1 G$O" %"B"*&>M @""* &+A&"< $1 p@%)@"17N p%"H$%"%$&)+*

T%+?%$= :UKT;


14/62

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+#"%$&""$1"< T"%1+*$> !"%O)B"1 :T!; K##%+#%)$&)+*1 ^]*%">"$1"< iT!j $##%+#%)$&)+*1 HG)BG H)>> >$#1" $& &G" "*< +I Vs

23882. Vs 2388 Unreleased Appropriations - ]*%">"$1"< $##%+#%)$&)+*1

:slow moving projects$*< #%+?%$=1 I+%


15/62

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QQQ mQQ QQQ

22. TUKV :a$%)+A1 +&G"% >+B$>

#%+`"B&1;

Y7933 For Augmentation

The President approved these requests.2E

!A@1"ZA"*&>M7 !"B%"&$%M K@$< 1"*& &+ &G" T%"1))$*B"1 )* I)1B$> M"$% :FY; 2388

B+%%"1#+*"&"< +% )?*="*&.

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&G" I+>>+H)*? #A%#+1"1X

1.1 &+ #%+O) $>>+&="*& B>$11

$>>+B$&)+* $1 $ %"1A>& +I +*S?+)*? #%)+%)&M #%+`"B&1 $*"&"< +% >+&="*&17 of national government agencies as of June 30, 2012.

FG" UCP 1&$&"< &G$& &G" 1$O)*?1 +A& +I &G" 2382 -KK B+%%"1#+*>"< #+1)&)+*1 $*< &+ B+=#>"&"< +% $11

$>>+B$&)+* $1 $ %"1A>& +I +*S?+)*? #%)+%)&M #%+`"B&1 $*> >$#1" $&

&G" "*< +I &G" M"$%R

2. KO$)>$@>" @$>$*B"1 I%+= B+=#>"&"< +% )"% @""*

%">"$1"< &+ 0-K.24

L* $ May 20, 2013 Memorandum7,3&G" UCP 1&$&"< &G$& )& G$< )"< I+% &G" I+>>+H)*?

#A%#+1"1X

9.8 &+ $A?="*& $$11 $>>+B$&)+*

$1 $ %"1A>& +I +*S?+)*? #%)+%)&M #%+`"B&1 $*< implementation of newactivities :".?.7 )*B%"$1"d)">+&="*&.

KBB+%M7 all unobligated balances at the end of every quarter,

@+&G I+% B+*&)*A)*? $*< BA%%"*& $>>+&="*&17 1G$>> @" H)&G"< &+

IA*< I$1& =+O)*? #%+?%$=1d#%+`"B&1. FG" $>>+&="*&1 &+ @" H)&G$)= &G$& &G"

UKT )1 unconstitutionalI+% O)+>$&)*? !"B&)+* 297 #$%$?%$#G 9,2$*< !"B&)+*

24 G&HHH.)["< @$>$*B"1 $*< &G")% /"$>)?*="*& &+ IA*< &G"

bA$%&"%>M iUKTj.,8 /"1#+*$H 1G$>> @" #$11"< $A&G+%)[)*? $*M &%$*1I"% +I $##%+#%)$&)+*1R G+H"O"%7 &G" T%"1)$H7 @" $A&G+%)["< &+ $A?="*& $*M )&"= )* &G"

?"*"%$> $##%+#%)$&)+*1 >$H I+% &G")% %"1#"B&)O" +II)B"1 I%+= 1$O)*?1 )* +&G"% )&"=1 +I &G")% %"1#"B&)O"$##%+#%)$&)+*1.


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247 #$%$?%$#G 87 K%&)B>" aL7,, $1 H">> $1 !"B&)+* 867 K%&)B>" aLL,E +I &G"

8456 D+*1&)&A&)+*.

Discussions

B.

Preliminary Matters

FG" BG$>>"*?"1 $?$)*1& &G" UKTN1 B+*1&)&A&)+*$>)&M H"%" I)>"< H)&G &G"

D+A%& &G%+A?G #"&)&)+*1 I+% certiorari$*< #%+G)@)&)+* A*M )*O+W" &G" D+A%&N1 #+H"% +I `A %"O)"H.

-)O"* &G"1" B)&"< =+> &G" B+*" Y9 #"&)&)+* %"ZA)%"1. FG" %"=$)*M #%+O)$%)IM &G" D+A%&N1 $##%+$BG"1 )* ?)O)*?

B$1"1.

K1 L "Q#>$)*"< )* Imbong7 &G" D+A%& A*O)*? $B&A$> "

%)?G&1R

:2;

&G" traditional justiciable cases $1 A*&d1.

FG" #%"1"*& #"&)&)+*1 $>>"?" &G$& ?%$O" $@A1" +I 1 H)&G)* &G"

&G)%< W)*< $@+O"7 i.e., &G" > @" #$)< +A& +I &G" F%"$1A%M "QB"#& )* #A%1A$*B" +I $* $##%+#%)$&)+* =$ +I $>> &G" "Q"BA&)O" $H1 @" I$)&GIA>>M "Q"BA&" 57 238E.


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the Executive)&+ "*1A%" &G$& &G" @+A*"1 +I D+A%& G$1 @""* "Q#%"11>M B)&"M I>"1G"< +A& &G" ="$*)*? +I fÀ #+H"%7g *+& +*>M @M

B+*I)%=)*? &G" ="$*)*? +I &G" &"%= $1 A*)1G"< @M >$H.

JA #+H"% includes the duty of the courts of justice &+

1"&&>" actual controversies )*O+>O)*? rights which are legally

demandable and enforceable7 AND&+ )B17 "=#G$1"1 $*< A*)" $

completely new power and duty&+ &G" JA$BW +% "QB"11 +I À%)1M )* %"1#+*1" &+ &G" JA)&)B$> &+ &G" 1+B)"&$> &"< I%+= &G"1" #$1&

À %A>)*?1.

]*Mg À1&)B)$@>" B$1" HG)BG

"?$>

%)?G&1 =A1& "Q)1&. 0+&$@>M7 even if the requirements under the traditional

definition of judicial power are applied7 &G"1" %"ZA)1)&"1 $%" B+=#>)"< H)&G


20/62

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+*B" ?%$O" $@A1" +I O"M7 a matter is ripe I+% $%"$& +I &G" BG$>>"*?"< $B&)+*7

&G"* &G" B+*&%+O"%1M B$**+& @A& $>%"$"< >$H +% %A>" )1 1G+H* &+ $##>M *"B"11$%)>M G$1 locus standi

1)*B" $ B+*1&)&A&)+*$> O)+>$&)+* B+*1&)&A&"1 $* $II%+*& +% )*`A%M &+ &G" $II"B&">7 $ >"11 1&%)*?"*& %"ZA)%"="*& +I locus standi

+*>M *""" B$1" +I &G)1 &M#" I%+=

&G" #A%" +% ="%" +#)*)+* &G$& B+A%&1 B$**+& %"*"1 +* hierarchy of courts $*< transcendental

importance7 I$% I%+= @")*? ?%+A*M %""O"> +I B+A%& &G$& 1G+A>< G$*" &G" B+*&%+O"%1M7 $1 M

HG"* $ #"&)&)+* )*O+>O"1 $ =$&&"% +I &%$*1B"*< )& @"

+H"% B+A%&7 @$1"< +* )&1

B+*1))1G"1 &G" *""< I+% &G" D+A%&N1 "Q"%B)1" +I

"Q#$*"$%>M 1$&)1IM &G"1" %"ZA)1)&"1 $1 "Q#>$)*">+&="*&1 $*)1G &G" 1"B+*< %"ZA)%"="*& +I

&%$*1B"*" &G" B+*B"#& +I &%$*1B"*


24/62

!"#$%$&" (#)*)+* 2E -./. 0+1. 2342567 2348,97 et al.

&G" ?+O"%*="*&R $*< (3)&G" >$BW +I $*M +&G"% #$%&M H)&G $ =+%" >)+*1 =+%" A*>"11 G$>&")&M7 &G" hQ"BA&)O" )1 "O"*

*+H "*?$?"< )* $ f1G$="g B$=#$)?* &+ #%+< #"+#>" &+ #$M &G")% &$Q"1. LI

&$Q"1 H)>> B+*&)*A" &+ @" I$)&GIA>>M #$) )=#+%&$*B" I+% &G" #"+#>" &+ W*+H G+H &G")% &$Q =+*"M )1

1#"*& +% =)11#"*&7 $*< &+ @" )*I+%="< $1 H">> &G$& &G"M G$O" &G)1 %)?G&.

V+% $*+&G"%7 &G" #"&)&)+*"%1N 1"%)+A1 $>>"?$&)+*1 +I B+*1&)&A&)+*$>

O)+>$&)+* @M &G" hQ"BA&)O" x )* &%$*1I"%%)*? $##%+#%)$&)+*1 >+H$@>" &%$*1I"% +I

$##%+#%)$&)+*1 A*" aL +I &G" D+*1&)&A&)+* as

admitted by the respondents themselvesx 1$&)1IM &G" 1"B+*< $&)+*1 $%" B>"$%7 #$&"*& $*< +I A&=+1& ?%$O)&MR &G"M $II"B& &G" O"%M *$&A%"

+I +A% %"#A@>)B$* 1M1&"= +I ?+O"%*="*&.

_$1&>M7 ?)O"* &G" )*&%)*1)B *$&A%" +I &G" #"&)&)+*1 $1 &$Q#$M"%1N 1A)&1 :&+

#%"O"*& H$1&$?" $*< =)1$##>)B$&)+* +I IA*

"Q"BA&)O" $B&;7 &G"%" B$* %"$>>M @" *+ +&G"% #$%&M H)&G $ =+%" )&M &G$* &G" #"&)&)+*"%17

1A)*? $1 &$Q#$M"%1 $*< )*O+W)*? $ #A@>)B %)?G&.

(O"% $*< $@+O" &G"1" $%"< &G" 1&$&A&+%)>MSB%"$&"< #+%W @$%%">

1M1&"= &+ @" A*B+*1&)&A&)+*$> I+% O)+>$&)*? &G" B+%" "< &G$& &G" >"?)1>$&+%N1 post-enactment participation

)* &G" $%"$1 +I project identification7 fund release$*< fund realignment

+% %+>" )* &G" implementation +% enforcement of the GAAs $%" @"M+*.FG" D+A%&

#"%&)*"*&>M %A>"> &G" I+%"?+)*? %"$1+*17 &G" D+A%& G"%"@M $H HG)BG 1)=)>$%>M

EY Kilosbayan, Incorporated v. Guingona, Jr.7 -./. 0+. 88,,697 P$M 97 844E7 2,2 !D/K 883.E6 Supra *+&" 83.


25/62

!"#$%$&" (#)*)+* 29 -./. 0+1. 2342567 2348,97 et al.

$>>+H >"?)1>$&+%1 &+ H)">< $*M I+%= +I #+1&S"*$B&="*& $A&G+%)&M )* &G"

)=#>"="*&$&)+* +% "*I+%B"="*& +I &G" @A


26/62

!"#$%$&" (#)*)+* 2Y -./. 0+1. 2342567 2348,97 et al.

was also a practice during the execution stage of a GAA and which was

simply embodied in the GAA provisionsx &G"* &G"%" )1 "O"%M %"$1+* I+% &G"

D+A%& &+ 1ZA$%">M %A>" +* &G" B+*1&)&A&)+*$>)&M +I &G" hQ"BA&)O"N1 $B&)+* )*

>)?G& +I &G" 1"%)+A1*"11 +I &G" $>>"?$&)+*1 +I B+*1&)&A&)+*$> O)+>$&)+*1 )* &G"

#"&)&)+*1.

L* I$B&7 &G" *$&A%" $*< $=+A*&1 +I &G" #A@>)B IA*O"< $%" =+%"

&G$* "*+A?G &+ 1+A*< $>$%= @">>1 &+ &G)1 D+A%& )I H" $%" &+ =$)*&$)* I"$>&M &+

+A% %+>" $1 &G" ?A$%M +* >"&&"%1 +I %"ZA"1&

1A@=)&&"< &+ A1 @M &G" !"*$&+%1g 1G+A>< *")&G"% "1B$#" &G" D+A%&N1 $&&"*&)+*

*+% 1G+A>< &G" D+A%& ?>+11 +O"% )&. V%+= &G" O"%M 1&$%&7 G)1 1&$&"="*& B$1& $much darker cloud +* &G" O$>)"7 G$1 $* "II"B& +* B+*?%"11)+*$> +O"%1)?G&. FG"

I$B& &G$& )*"?)1>$&+%1 $%" ?)O"* #+1&S"*$B&="*& %+>"1 )* &G")=#>"="*&$&)+* +I &G" @A


27/62

!"#$%$&" (#)*)+* 26 -./. 0+1. 2342567 2348,97 et al.

)11A"1 &G$& $%" )*G"%"*&>M susceptible of being decided on grounds

recognized by law.98

L* B+*&%$"?)1>$&)O" +% "Q"BA&)O" @%$*BG +I &G" ?+O"%*="*&R )& )1 B+*B"%*"< H)&G )11A"1

)&M +I $ #$%&)BA>$% ="$1A%".92

eG"%" &G" )11A"1 1+ #+1"< $%" #+>)&)B$>7 &G" D+A%& *+%=$>>M B$**+& assume

jurisdiction A*M 1G+H* &G" &"Q&A$> >)=)&1 &+&G" hQ"BA&)O"N1 #+H"% +O"% &G" )=#>"="*&$&)+* +I &G" -KK7 #$%&)BA>$%>M )*

&G" G$*)*? $*< =$*$?"="*& +I IA*)BMS=$W"%1 &+ 1&)=A>$&" &G"B+A*&%MN1 "B+*+=M $*< )=#%+O" "B+*+=)B ?%+H&G. V%+= &G)1 #"%1#"B&)O"7

B+*1&)&A&)+*$> #%+O)1)+*1 &+ABG)*? +* "B+*+=)B =$&&"%1 $%" A* &%$*1>$&)+* +I &G"

hQ"BA&)O"N1 "B+*+=)B `A1&)I)B$&)+* I+% &G" UKT ^ $%" $ >)=)&$&)+*1 $##>)B$@>" &+ &G" means I+% $BG)"O)*?

&G"=. These legal limitations are precisely at the core of the issues

presented to us in these challenges to the constitutionality of the DAPs

creation and implementation; the issues before us are legal ones, not

economic or political.

98 Integrated Bar of the Philippines v. Zamora7 ,42 TG)>. Y85 :2333;.92 Taada v. Cuenco7 83, TG)> 83987 83Y5 :8496;.9, !"#$%$&" (#)*)+* +I JA1&)B" TA*+ )*Integrated Bar of the Philippines v. Zamora7 supra *+&" EY.


28/62

!"#$%$&" (#)*)+* 25 -./. 0+1. 2342567 2348,97 et al.

V+% &G)1 %"$1+*7 L G$O" @%A1G"< $1)$%?">M "B+*+=)B #%$B&)B$>)&M %"$1+*1.

5.

The Courts boundary-keeping rolein times of political upheaval

K1 $ I)*$> *+&" +* &G" #%+B" $1#"B&17 L @">)"O" &G$& &G" #%"1"*&

B$1" #%+O))=)&1 1"& @M &G"

D+*1&)&A&)+* @"&H""* $*< $=+*? &G" I $1 &G" =")=)&1 )* &G"

"Q"%B)1" +I #+H"% @M "$BG @%$*BG +I ?+O"%*="*&. e" &G"* +@1"%O"< &G$&

&G"1" B+*1&)&A&)+*$> @+A*)&)B$> "QB)&"="*&7 $*< )& )1 &G" D+A%&N1 %+>" &+ B>$%)IM

$*< %")*I+%B" &G" #%+#"% $>>+B$&)+* +I #+H"%1 1+ &G$& &G" A"*B".

e" B>$%)I)"< &G$& $>&G+A?G H" =$M7 )* "II"B&7 *A>>)IM ?+O"%*="*&$> $B&)+*1

$@G+%%"*& &+ &G" D+*1&)&A&)+*7 H" )*? HG"*

B$1"1 +I *$&)+*$> )*&"%"1& %"$BG &G" D+A%&7 $*< G$O" A1"< )&1 ?A)"1 &+ M &G" &%$ `A1&)B)$@>" B+*&%+O"%1)"1&G$& >"< &+Angara7 @A& $>1+ &G" "Q)1&"*B" +I ?%$O" $@A1" +I > B$%%M $ >+& +I &%A&G $*> $%" &G" ="$)=1 I+% $A&G+%)&M @A&

&G" 8456 D+*1&)&A&)+* G$1 &$W"* )& +*" 1&"# IA%&G"%X H" *+H $>1+


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!"#$%$&" (#)*)+* 24 -./. 0+1. 2342567 2348,97 et al.

ZA"1&)+*1 &G$& =$M G$O" B+=" H)&G &G" B+*&%+O"%1M. FG)1 "Q#$*1)+*

*"B"11$%)>M ?)O"1 %)1" &+ $ G+1& +I ZA"1&)+*1X does our constitutional duty

end with the determination of the presence or absence of grave abuse of

discretion and the decision on the constitutional status of a challenged

governmental action? To what extent can we, acting within our judicial

power and the power of judicial review, clarify the consequences of our

decisionu

/"B"*& `A%)1#%A$%)IM &G" $##>)B$&)+* +I &G" >$H $*< +I +A%

M $%)1" $?$)* @"B$A1" +I &G" B+=#>"Q)&M $*M +A% %A>)*? )*Atong Paglaum v. Comelec99+* &G" %"ZA)%"="*&1

&+ ZA$>)IM $1 $ #$%&M>)1& A*)1& 1M1&"=. K1 H">>7 H" #%+O))*"1 )* Republic v. CA and Molina9Y+* G+H &+ )*&"%#%"& $*< $##>M

K%&)B>" ,Y +I &G" V$=)>M D+O" &+ B>$%)IM

&G" $##>)B$&)+* +I &G" +#"%$&)O" I$B& )&M $*< &G" #+&"*&)$> B+*1"ZA"*B"1 A*+H.

C.

Substantive Matters

1.

The DAP violates the principles of

checks and balances and the separation of

powers that the 1987 Constitution

integrated in the budgetary process

a.

The principles of separation of

powers and checks andbalances in the budgetary

process

FG" %"B"*&Belgica %A>)*? ?$O" &G)1 D+A%& &G" +##+%&A*)&M &+ " +I 1"#$%$&)+* +I #+H"%1 $1 $##>)"< )* &G"

@A


30/62

!"#$%$&" (#)*)+* ,3 -./. 0+1. 2342567 2348,97 et al.

?+O"%*="*& #>$M1 )* &G" I+%=A>$&)+*7 "*$B&="*&7 $*< )=#>"="*&$&)+* +I &G"

*$&)+*$> @A


31/62

!"#$%$&" (#)*)+* ,8 -./. 0+1. 2342567 2348,97 et al.

$##%+#%)$&)+*1 @)>>. This budget contains the appropriations recommended

by the President for the operation of the government.95

eG)>" &G" T%"1)$**)*? $*< %"B+=="*" D+*?%"11 )1 1+ >)=)&"" S &G" $A&G+%)&M &+ A>&)=$&">M )BM $*< 1#"*" aLL +I &G"

D+*1&)&A&)+* 1""W1 &+ "*1A%" &G$& HG)>" D+*?%"11 )1 ?)O"* &G" #+H"% +I

$##%+#%)$&)+*7 )& =A1& A*


32/62

!"#$%$&" (#)*)+* ,2 -./. 0+1. 2342567 2348,97 et al.

B+*?%"11)+*$> @A


33/62

!"#$%$&" (#)*)+* ,, -./. 0+1. 2342567 2348,97 et al.

process. CM I$B)>)&$&)*? &G" A1" +I IA*$11)I)"< $1 1$O)*?1 &+ I)*$*B"

)&"=1 +&G"% &G$* I+% HG)BG &G"M G$O" @""* $##%+#%)$&"


34/62

!"#$%$&" (#)*)+* ,E -./. 0+1. 2342567 2348,97 et al.

IA*$H. _)W"H)1"7

$##%+#%)$&"< IA*$&)O" @%$*BG +I ?+O"%*="*&X HG$& )&"=d1 +I "Q#"*


35/62

!"#$%$&" (#)*)+* ,9 -./. 0+1. 2342567 2348,97 et al.

!)?*)I)B$*&>M7 &G)1 %"$)B$&)+* +I

!"B&)+* 29:9; $*< &G" &%"$&="*& +I )&1 "QB"#&)+* )1 *+& $& $>> *"H &+ &G" D+A%&

$1 H" G$O" #%"O)+A1>M %A>"< +* &G)1 #+)*& )*Nazareth v. Villar.Y4 e" &G"*

1$)< 1&)>> @" &G$& &G" @A


36/62

!"#$%$&" (#)*)+* ,Y -./. 0+1. 2342567 2348,97 et al.

L* 1"O"%$> B$1"17 &G" D+A%& %A>"< &G$& $B&A$> 1$O)*?1 =A1& "Q)1& @"I+%"

&G" #+H"% &+ $A?="*&7 A*>+H"< &G" T%"1)M

B+>>)$&)+* +I !"B&)+* 8Y:9;7

K%&)B>" aLLL +I &G" 846, D+*1&)&A&)+* :#%"1"*&>M !"B&)+* 29:9;7 K%&)B>" aL +I

&G" 8456 D+*1&)&A&)+*;.

L*Demetria7 &G" D+A%& *+&"< &G$& &G" >""H$M ?%$*&"< &+ #A@>)B +II)B"%1

)* A1)*? IA*>+&&"< I+% $##%+#%)$&)+*1 &+ $A?="*& +&G"% )&"=1 )* &G" -KK)1 >)=)&"< 1)*B" !"B&)+* 8Y:9;7 K%&)B>" aLLL +I &G" 846, D+*1&)&A&)+*

:>)W"H)1" $ @+)*? )* Sanchez v. Commission of Audit762IA%&G"%

"=#G$1)[)*? &G$& f[a]ctual savings )1 $ sine qua non &+ $ O$>)< &%$*1I"% +I

IA*)M B$%%)"< +A&. First, &G"%" =A1& @" 1$O)*?1 )* &G"

#%+?%$=="< $##%+#%)$&)+* +I &G" &%$*1I"%%)*? $?"*BM. Second,&G"%" =A1& @"

$* "Q)1&)*? )&"=7 #%+`"B& +% $B&)O)&M H)&G $* $##%+#%)$&)+* )* &G" %"B")O)*?

$?"*BM &+ HG)BG &G" 1$O)*?1 H)>> @" &%$*1I"%%". 222 :8456;.68 L. E25 :2335;.6, L


37/62

!"#$%$&" (#)*)+* ,6 -./. 0+1. 2342567 2348,97 et al.

0")&G"% B$* 1$O)*?1 @" A1"< &+ IA*< #%+?%$=1 $*< #%+`"B&1 *+&

$##%+#%)$&"< I+% @M D+*?%"11.

L* Sanchez v. Commission on Audit76EH" *+&"< &G$& &G" )>>"?$>)&M +I&G" &%$*1I"% +I IA* -+O"%*="*&

:DILG; &+ &G" (II)B" +I &G" T%"1)M I%+= &G" >$BW +I $B&A$>

1$O)*?17 @A& I%+= &G" >$BW +I $* $##%+#%)$&)+* &G$& $A&G+%)["1 &G" A1" +I

IA*+?MN1 (DOSTs; 1$O)*?1 &+ IA*< )&1 "=#>+M""1N @"*"I)&1 A*+?M T"%1+**"> )* -+O"%*="*&. e" 1$)< &G$& $>&G+A?G &G" 1+A%B" +I

IA*7 )&1 A1" &+ IA*< @"*"I)&1 I+% HG)BG

*+ $##%+#%)$&)+* G$< @""* #%+O)"$1"$&"< !"B&)+*1 24 $*< 29:9;7 K%&)B>" 24 +I &G" 8456 D+*1&)&A&)+*.

FGA17 1$O)*?1 B$**+& @" A1"< &+ $A?="*& *+*S"Q)1&"*& )&"=1 )* &G"

-KK. eG"%" &G"%" $%" *+ $##%+#%)$&)+*1 I+% B$#)&$> +A&>$M )* $ 1#"B)I)B

$?"*BM +% #%+?%$=7 I+% "Q$=#>"7 1$O)*?1 B$**+& @" A1"< &+ @AM B$#)&$>

"ZA)#="*& I+% &G$& #%+?%$=. 0")&G"% B$* 1$O)*?1 @" A1"< &+ IA*< &G" G)%)*?+I #"%1+**">7 HG"%" $ #%+?%$=N1 $##%+#%)$&)+* $B" )* &G" -KK1I+% Vs1 23837 2388 $*< 2382. FG"1" B+*?%"11)+*$> >)=)&$&)+*1 $%" $1

I+>>+H1X

i.

definition of savings

FG" -KK1 +I 23837 2388 $*< 2382 $>> G$O" )M #%+O)


38/62

!"#$%$&" (#)*)+* ,5 -./. 0+1. 2342567 2348,97 et al.

Meaning of Savings xxx. Savings %"I"% &+ #+%&)+*1 +% @$>$*B"1 +I $*M

#%+?%$=="< $##%+#%)$&)+* )* &G)1 KB& I%"" I%+= $*M +@>)?$&)+* +%"*BA=@%$*B" HG)BG $%"X

:); 1&)>> $O$)>$@>" $I&"% &G" B+=#>"&)+* +% I)*$> &)*? )* )=#%+O"< 1M1&"=1 $*< "II)B)"*B)"1 $*< &GA17

"*$@>"< $?"*B)"1 &+ =""& $*< "11"%

B+1&.

Augmentation )=#>)"1 &G" "Q)1&"*B" )* &G)1 KB& +I $ #%+?%$=7$B&)O)&M7 +% #%+`"B& H)&G $* $##%+#%)$&)+*7 HG)BG A#+*

)=#>"="*&$&)+* +% 1A@1"ZA"*& "O$>A$&)+* +I *""> $ *+*S"Q)1&"*& #%+?%$=7$B&)O)&M7 +% #%+`"B&7 @" IA*M >)=)& &G" hQ"BA&)O"N1 "Q"%B)1" +I &G"

#+H"% &+ $A?="*&7 $1 &G"M 1&%)B&>M $@>" @$>$*B"; I%+=

&G)1 #%+?%$=="< $##%+#%)$&)+*.

,.

FG$& &G" $O$)>$@>" @$>$*B" @" "="*&$&)+* +I ="$1A%"1 &G$& %"1A>&"< )*

)=#%+O"< 1M1&"=1 $*< "II)B)"*B)"17 "*$@>)*? $?"*B)"1 &+

=""& $*<


39/62

!"#$%$&" (#)*)+* ,4 -./. 0+1. 2342567 2348,97 et al.

E.

FG$& &G" $O$)>$@>" @$>$*B" @" A*+@>)?$&"< +% A*"*BA=@"%"M $M1 1G$>> @" $O$)>$@>" I+% %">"$1" $*< +@>)?$&)+* I+% $

#"%)+< "Q&"*>+H"< &+ @" $>>+&&")?$&"< $*< %">"$1"< A*&)> Vs 2388R

IA* Vs 2382R $*< IA* Vs 238,.

FG" "Q&"*"&"M7 &G" #%+O)1)+*1 "II"B&)O">M ?%$*&"< &G" hQ"BA&)O" I>"Q)@)>)&M )*

)=#>"="*&)*? &G" -KK7 $*< $>1+ "*1A%"< &G$& #A@>)B IA*> @" 1#"*& $1

$##%+#%)$&" +A&>$M1 A*"$1"1 $*< +@>)?$&)+*1 1G$>> @" 1A@=)&&"< &+ &G" !"*$&" D+==)&&"" +* V)*$*B"$*< &G" \+A1" D+==)&&"" +* K##%+#%)$&)+*1.


40/62

!"#$%$&" (#)*)+* E3 -./. 0+1. 2342567 2348,97 et al.

iii.

general prohibition

against impoundment

of releases

_$1&>M7 )* $1+ #%+G)@)&"< &G" "11 )* $BB+%"1 $* -+O"%*="*& CA


41/62

!"#$%$&" (#)*)+* E8 -./. 0+1. 2342567 2348,97 et al.

>$H7 &G" T%"1)$H.

FG" -KK7 G+H"O"%7 )* B+*1)" B)%BA=1&$*B"1&G$& =)?G& %"*"="*&$&)+* +I $>> +I )&1 $##%+#%)$&)+*1

)=#%$B&)B$@>" +% )=#+11)@>"7 $A&G+%)["< &G" T%"1) @A


42/62

!"#$%$&" (#)*)+* E2 -./. 0+1. 2342567 2348,97 et al.

H)&G)* &G" -KKN1 Vs. (&G"%H)1"7 &G"M 1G$>> %"O"%& @$BW &+ &G" -"*"%$> VA*< @" A*$O$)>$@>" I+% "Q#"*"?)1>$&)O" "*$B&="*&.52

e.

the sources of DAP fundscannot qualify as savings

i.

unobligated allotments

K1 L "$%>)"% "=#G$1)["+&&"< I+% #$%&)BA>$% $##%+#%)$&)+*1

=$M +*>M @" A1"< &+ $A?="*& +&G"% )&"=1 )* &G" -KK HG"* &G"%" $%" $B&A$>

1$O)*?1. FG" UKT7 @M #++>)*? IA*$&"< &G)1 B%)&)B$> %"ZA)%"="*& $1 &G" 1+A%B"1 +I UKT

IA*)IM $1 1$O)*?1.

L* #++>)*? &+?"&G"% fA*+@>)?$&"< $>>+&="*&1g5,&+ $A?="*& +&G"% )&"=1

)* &G" -KK7 &G" UKT A1"< IA*%"$>+&&"< @A& G$< M"&

&+ @" +@>)?$&"< +% 1#"*& I+% )&1 )*&"*>M $?%"" H)&G J. D$%#)+

&G$& &G"1" IA*> $1 )* &G" (A&>$M1 :D(;R

,.8.2 P$)*&"*$*B" $*< (&G"% (#"%$&)*? hQ#"*1"1 :P((h; %">$&"< &+ &G"

)=#>"="*&$&)+* +I #%+?%$=1 $*< #%+`"B&17 $1 H">> $1 B$#)&$>)["< P((hi.j

FG)1 H)&G )1 B+*&%$%M &+ &G" )*&"*& $*< >$*?A$?" +I !"B&)+* Y8 +I

&G" 2388 -KK7 $*< !"B&)+* Y9 5E HG)BG "Q&"*)?$&"< $>>+&="*& %"I"%1 &+ &G" #+%&)+* +I %">"$1"< $##%+#%)$&)+*1 HG)BG G$1 *+& @""*

"Q#"*"$1"1 $*< +@>)?$&)+*1 1G$>> @"

1A@=)&&"< &+ &G" !"*$&" D+==)&&"" +* V)*$*B" $*< &G" \+A1" D+==)&&"" +*

K##%+#%)$&)+*17 ")&G"% )* #%)*&"< I+%= +% @M H$M +I ">"B&%+*)B


43/62

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&+?"&G"%7 #%+O)M @" B+*1) &G" "*< +I Vs 2382. VA*"&">M > @" B+*1)M)*? &G"1" B+*B"#&1 &+ &G" P((h $*< D( >"$$#1" =+*&G>M7 $*< &GA1 $*M IA*>+&&"< I+% &G" =+*&G >"I& A*A1"< ZA$>)I)"1 $1 1$O)*?17 H)&G &H+ "QB"#&)+*1X

:8; P((h HG)BG under the GAA can be declared as savings only in the

last quarter+I &G" Vs $*< :2; expenditures for Business-type activities7

HG)BG A*)?*""&">M $%" D( $1 1$O)*?1 )* &G" =)+*? @"I+%" &G" "*< +I &G" &H+SM"$% #"%)+< HG"* 1ABG IA*> @" +@>)?$&"" P((h I+% Vs 2382 I%+= J$*A$%M &+ JA*" 2382

=$M @" B+*1))IM

$1 1ABG.

L* &G)1 >)?G&7 0CD 0+. 9E8 I+1&"%"< $ B+*1&)&A&)+*$> )>>"?$>)&MX &G"

#%"=$&A%" H)&G +I A*+@>)?$&"< $>>+&="*&1 #"%&$)*)*? &+ B$#)&$> +A&>$M1

$*< P((h $1 +I JA*" ,37 2382 A* "$%>M

$=+A*&"< &+ $ #%"1) +A&>$M1 A*"$1"1 $*< +@>)?$&)+*1 1G$>> @" 1A@=)&&"< &+ &G"!"*$&" D+==)&&"" +* V)*$*B" $*< &G" \+A1" D+==)&&"" +* K##%+#%)$&)+*1.


44/62

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+O"%%)" aL +I &G"

D+*1&)&A&)+*.5Y

i.1 final discontinuance or

abandonment

L >)W"H)1" $?%"" H)&G J. D$%#)+N1 BG$%$B&"%)[$&)+* +I &G" I)*$>

>A1&%$&)+* +I &G"

)=#+11)@)>)&M +% *+*SI"$1)@)>)&M +I $ #%+`"B& &G$& `A1&)I)"< )&1 )?*="*&d/">+B$&)+* +I D$#)&$> (A&>$M1. FG" $=+A*&

$##%+#%)$&"< )* &G)1 KB& I+% $BZA)1)&)+*7 B+*1&%AB&)+*7 %"#>$B"="*&7%"G$@)>)&$&)+* $*< B+=#>"&)+* +I O$%)+A1 D$#)&$> (A&>$M1 =$M @"%"$>)?*")?*="*&d%">+B$&)+* +I D$#)&$>

(A&>$M1 1G$>> @" $&)O" >M 1G+H &G$& &G"

%"$>>+B$&)+* +I A*+@>)?$&"< $>>+&="*&1 #"%&$)*)*? &+ B$#)&$> +A&>$M1 H$1 =$"?)1>$&)O" " aL +I &G" 8456 D+*1&)&A&)+* %"$> #$11"< @M &G" D+*?%"11 1G$>>7 @"I+%" )& @"B+="1 $ >$H7 @" #%"1"*&"< &+ &G"

T%"1)> 1)?* )&R +&G"%H)1"7 G" 1G$>> O"&+ )& $* $*< #%+B""< &+ %"B+*1) &G" P"=@"%1 +I 1ABG \+A1" 1G$>> $?%"" &+ #$11 &G"

@)>>7 )& 1G$>> @" 1"*&7 &+?"&G"% H)&G &G" +@`"B&)+*17 &+ &G" +&G"% \+A1" @M HG)BG )& 1G$>>>)W"H)1" @" %"B+*1)> @"> B+==A*)B$&" G)1 O"&+ +I $*M @)>>&+ &G" \+A1" HG"%" )& +%)?)*$&"< H)&G)* &G)%&M > G$O" &G" #+H"% &+ O"&+ $*M #$%&)BA>$% )&"= +% )&"=1 )* $*

$##%+#%)$&)+*7 %"O"*A"7 +% &$%)II @)>>7 @A& &G" O"&+ 1G$>> *+& $II"B& &G" )&"= +% )&"=1 &+HG)BG G"


45/62

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A*+@>)?$&"< $>>+&="*&1 $*< A*%">"$1"< $##%+#%)$&)+*1 I+% 1>+H =+O)*?

#%+`"B&1 &+ @" =)1#>$B"


46/62

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L* +&G"% H+% #%+?%$=. (*B" $ #%+?%$= )1 I)*$>>M +&&"< IA*"$1"< $##%+#%)$&)+*155I+%

1>+HS=+O)*? #%+`"B&1.

FG" hQ"BA&)O" M )"% "Q#>$)*"%"$$*B"1 +I #%+?%$=="< $A&G+%)[$&)+*1 d $##%+#%)$&)+*1

#A%1A$*& &+ >$H :".?. -"*"%$> K##%+#%)$&)+*1 KB&; +% +&G"% >"?)1>$&)O" "*$B&="*&7 1&)>> $O$)>$@>" I+% %">"$1".K**"Q K7 JA*" 297 2382 P"=+%$*


47/62

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G$< @""* )=#+A*"$% #%+G)@)&)+* $?$)*1& )& )* &G"

-KK.

g. Qualifications to the

Presidents flexibility inbudget execution

FG"ponencia7 )* BG$%$B&"%)[)*? &G" hQ"BA&)O"N1 $B&)+*1 )* I+%=A>$&)*?

&G" UKT7 #+)*&"< +A& &G$& :1; &G" UKT )1 H)&G)* &G" T%"1)$&" $*< )=#>"="*&R $*< :2; &G" T%"1)"Q)@)>)&M )* @A


48/62

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:#%+`"B&d#%+?%$=d$B&)O)&M; &+ $*+&G"% HG"%" @+&G #A%#+1"1 $%" B+O"%"< @M &G"

1$=" )&"= +I "Q#"*


49/62

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I+% "B+*+=)B B+*B>A1)+*1. e" $%"7 $I&"% $>>7 $ B+A%& +I >$H @+A*< &+ =$W"

)&1 "?$> B+*1) +A&B+="17 )*B>AM +@1"%O"< &G$& &G" UKT IA* +A&>$M I+% &G" D(KN1 fLF

L*I%$1&%AB&A%" T%+?%$= $*< G)%)*? +I $)&)?$&)+* "Q#"%&1gR 43 :)));

B$#)&$> +A&>$M I+% &G" TG)>)##)*" K)% V+%B"N1 f(*SC$1" \+A1)*? V$B)>)&)"1

$*< D+==A*)B$&)+*1 hZA)#="*&gR 48 $*< :)O; B$#)&$> +A&>$M I+% &G"

U"#$%&="*& +I V)*$*B"N1 fLF L*I%$1&%AB&A%" P$)*&"*$*B" T%+`"B&.g

V+% )*1&$*B"7 &G" UKT I$B)>)&$&"< IA*


50/62

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$)&)?$&)+* "Q#"%&17g 42 B$#)&$> +A&>$M I+% &G" U"#$%&="*& +I

V)*$*B"N1 fLF L*I%$1&%AB&A%" P$)*&"*$*B" T%+`"B&g4, $*< B$#)&$> +A&>$M I+%

&G" TG)>)##)*" K)% V+%B"N1 f(*SC$1" \+A1)*? V$B)>)&)"1 $*< D+==A*)B$&)+*

hZA)#="*&.g4E0+*" +I &G" $##%+#%)$&)+*1 HG)BG IA*< &G"1" #%+`"B&1 G$< $*

)&"= I+% B$#)&$> +A&>$M7 $*< M"&7 &G" UKT )*&%+ $##%+#%)$&)+*7

&G" &%$*1I"% +I IA* #%+G)@)&)+* A*" aL +I &G" 8456 D+*1&)&A&)+*.

V+% "=#G$1)17 I+% &G" #+H"% +I $A?="*&$&)+* &+ @" O$>)M "Q"%B)1"$HIA> %">"$1" +I &G" ]*#%+?%$=="< VA*< )* &G" 2388

$*< 2382 -KK1. K1 $* $1)"?)1>$&)O" G)1&+%M +I &G"

#%+O)1)+* >)=)&)*? &G" %">"$1" +I &G" ]*#%+?%$=="< VA*< +*>M HG"*

+%)?)*$> %"O"*A" &$%?"&1 G$O" @""* "QB""A1)+*.

FG" ]*#%+?%$=="< VA*< )* @+&G &G" 2388 $*< &G" 2382 -KK1

%"ZA)%"1 $1 $ B+* %"O"*A" &$%?"&1 I+% &G$& M"$%. FG)1

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T%+O)1)+* 0+. 8 )* &G" 2388 -KK $*< )* !#"B)$> T%+O)1)+* 0+. 8 )* &G" 2382

-KKX

8. /">"$1" +I VA*" aLL +I &G" D+*1&)&A&)+*7 QQQ

42 FG" UKT7 )* +% K"B&%+*)B )##)*" K)%I+%B"N1 f(*SC$1" \+A1)*? V$B)>)&)"1 $*< D+==A*)B$&)+*

hZA)#="*&7g &G" UKT $A?="*&"< 1"O"%$> $##%+#%)$&)+*1 +I &G" TG)>)##)*" K)%I+%B" H)&G B$#)&$> +A&>$M&+&$>)*? &+ T24.5 =)>>)+*. 0+*" +I &G"1" $##%+#%)$&)+*1 G$< $* )&"= I+% D(.


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C+&G !#"B)$> T%+O)1)+*1 )* &G" 2388 $*< 2382 -KK1 B+*&$)*7 $>1+ )*

&G" 1$=" >$*?A$?"7 $ #%+O)1+ $A&G+%)[)*? &G" A1" +I B+>>"B&)+*1 $%)1)*? I%+=

1+A%B"1 *+& B+*1)>+H1

&G" A1" +I 1+A%B"1 *+& B+*1) %"O"*A" =$M @" A1"< &+ B+O"% $##%+#%)$&)+*1 )* &G" ]*#%+?%$==" #%+O)1)+* %"ZA)%)*? &G$& %"O"*A"

B+>>"B&)+*1 I)%1& "QB""< &G" +%)?)*$> %"O"*A" &$%?"&1. L* &G" )*&"%#%"&$&)+* +I

1&$&A&"17 &G$& HG)BG )=#>"="*&1 &G" "*&)%" 1&$&A&" 1G+A>< @" $##>)"< %"*.49

0")&G"% 1G+A>< $ #%+O)1+ @" ?)O"* $* )*&"%#%"&$&)+* &G$& %"*

#G%$1" )& ZA$>)I)"1 "*&)%">M )*A&)>". LI H" $%" &+ I+>>+H JA1&)B" U"> D$1&)>>+N1$%?A="*& &G$& !#"B)$> T%+O)1)+* 0+. 8 $>>+H1 &G" A1" +I B+>>"B&)+*1 $%)1)*?

I%+= 1+A%B"1 *+& B+*1)"$1" +I ]*#%+?%$=="< VA*< H$1 I)%1& B+* #%+O)1)+* 1+ &G$&

&G" %">"$1" +I IA*> @"=$>"B&)+*1 I+% &G" "*&)%" M"$% "QB""< &G"

+%)?)*$> %"O"*A" &$%?"&1. K>>+H =" &+ "=#G$1)["7 G+H"O"%7 &G$& reference

to revenue collections for the entire year under this special provision

pertain only to regular income sources or those covered by the same

set of assumptions used in setting the computation of revenue targets

for the year as reflected in the BESF.It should not, therefore, include

new sources of income not considered nor identified in the originalrevenue projections. 0")&G"% 1G+A>< )& B+O"% 1+A%B"1 +I )*B+=" *+&

49 FG)1 #%)*B)#>" )1 "Q#%"11"< )* &G" =$Q)= Ut magis valeat quam pereat7 &G$& )17 H" BG++1" &G"

)*&"%#%"&$&)+* HG)BG ?)O"1 "II"B& &+ &G" HG+>" +I &G" 1&$&A&" ^ )&1 "O"%M H+%< . Inding v. Sandiganbayan7

-./. 0+. 8E,3E67 8E JA>M 233E7 E,E !D/K ,557 E3,7 $1 B)&"< )* Philippine Health Care Providers v. CIR7-./. 0+. 8Y6,,37 !"#&"=@"% 857 2334.


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B+*&"=#>$&"< A* $11A=#&)+*1 A1"< )* 1"&&)*? &G" %"O"*A"

&$%?"&1.4Y

FGA17 $1 )& H$1 I)%1& )*&"*

%"O"*A" &$%?"&1 G$< @""* ="&7 $*< 1+A%B"1 *+& B+*1)A %"O"*A" &$%?"&1 G$< @""* "QB"" %"O"*A" &$%?"&1

=$M @" A1"< )1 HG"* &G" +%)?)*$> %"O"*A" &$%?"&1 G$< @""* "QB""A %"O"*A" &$%?"&1 &+ >"B&)+*1 G$>+H &G" A1" +I

1+A%B"1 +I IA*$&&"% G$< *+& @""* ="&7 &G"* )& B+A>< G$O" 1&$&"< )& )* $ >$*?A$?" B>"$%>M

#+)*&)*? &+H$%)B +I &G"TG)>)##)*"1 I%+= J$*A$%M +*" &+ U"B"=@"% &G)%&MS+*"7 &H+ &G+A1$*< *)*"7

"QB"#& HG"%" +&G"%H)1" 1#"B)I)B$>>M #%+O) ="=@"%1 +I &G" \+A1"

+I /"#%"1"*&$&)O"1 &+ +O"%%)"="*&$&)+* +I !#"B)$> T%+O)1)+* 0+. 8 )* &G" 2334 -KK. FG$& &G)1

$&&"=#& G$< *+& 1ABB"""="*&$&)+* +I &G" !#"B)$>

T%+O)1)+* 0+. 8 )* &G" 2334 B+*&)*A"< $1 &G" hQ"BA&)O" B+*1&%A"< )& &+ @"="$*& &G$& &G" >$&&"%N1 )*&"%#%"&$&)+* +I &G)1 !#"B)$> T%+O)1)+* H$1 &G" &%A"

)*&"%#%"&$&)+* +I D+*?%"11. FG)1 )*&"%#%"&$&)+* H$1 B$%%)"< )*&+ &G" >$*?A$?"

+I !#"B)$> T%+O)1)+* 0+. 8 HG"* )& H$1 %"S"*$B&"< )* &G" 1A@1"ZA"*& M"$%17

)*B>A )* &G)1 B$1".

4. The operative fact doctrine:

concept, limits, and application to the

DAPs unconstitutionality.

4Y T%"1) -$["&&" a+>A=" 839 0+. 87 #. 2YE7 available

at G&HHH.> 0+. 988Y7 V+A%&""*&G D+*?%"117 available at G&HHH.)=2.#


53/62

!"#$%$&" (#)*)+* 9, -./. 0+1. 2342567 2348,97 et al.

L ?"*"%$>>M $?%"" H)&G J. C"%1$=)*N1 B+*B>A1)+* +* &G" +#"%$&)O" I$B&

+H I+% &G" D+A%&N1

B+*1))["< ="$*)*?.

F+ $##%"B)$&" &G" B)%BA=1&$*B"1 +% 1)&A$&)+*1 HG"* &G" )"$%%">$&)+*17 )*. bA"1&)+*1 +I %)?G&1 B>$)="< &+ G$O" @"B+=" O"1&")?G& +I &G" *$&A%" @+&G +I &G" 1&$&A&" $*< +I )&1

#%"O)+A1 $##>)B$&)+*7 >S)*B>A1)O" 1&$&"="*&

+I $ #%)*B)#>" +I $@1+>A&" %"&%+$B&)O" )*O$>))1G"< %A>"

:W*+H* $1 &G" void ab initiodoctrine; &G$& $* fA*B+*1&)&A&)+*$> $B& )1 *+& $>$HR )& B+*I"%1 *+ %)?G&1R )& )=#+1"1 *+ B+*&"=#>$&)+*7 $1 )*+#"%$&)O" $1 &G+A?G )& G$ 1M1&"= B$=" )* &G" 84931

HG"*7 )* 1"O"%$> B$1"17838&G" D+A%& B+*1)$%$&)+*

+I A*B+*1&)&A&)+*$>)&M +I &G" P+%$&+%)A= >$H1 +* B+*&%$B&1 $*< +@>)?$&)+*1.45 ,35 ]! ,687 ,85S,847 Y3 !. D&. ,86.44 FG" O+)< ab initio7 California Coastal Commission: Retroactivity of a Judicial Ruling of

Unconstitutionality7 8E UAW" h*O&>. _. c T+>oM V. 2E97 29Y.838 !"" &G" I+>>+H)*? B$1"1 +IMontilla v.Pacific Commercial, 45 TG)>.7 8,, :849Y; $*. 6,5 :849Y;.


54/62

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U"1#)&" &G" )*O$>)"< &G$& &G"

)*O$>)$)=1 I+% A*#$)< 1$>$%)"1 1G+A>< *+& #%"`A+M"" HG+ G$$)= H)&G &G" >"< &G" %A**)*? +I &G" #%"1B%)#&)O" #"%)+


55/62

!"#$%$&" (#)*)+* 99 -./. 0+1. 2342567 2348,97 et al.

L* &G" >$*?A$?" +I $* K="%)B$* !A#%"=" D+A%& "Q)1&"*B" +I $ 1&$&A&"7 #%)+% &+ 1ABG $ )&Mj7 )1 $* +#"%$&)O" I$B& $*< =$M G$O" B+*1"ZA"*B"1

HG)BG B$**+& À1&>M @" )?*+%"$%$&)+*. FG" "II"B& +I &G" 1A@1"ZA"*& %A>)*? $1 &+)*O$>)$&)+*17 )*.g839 :"=#G$1"1 1A##>)"$)*""7 $1 I+>>+H1X

FG" %A>"7 +*>M

$##>)"1 $1 $ =$&&"% +I "ZA)&M $*< I$)% #>$M. L& *A>>)I)"1 &G" "II"B&1 +I $*

A*B+*1&)&A&)+*$> >$H @M %"B+?*)[)*? &G$& &G" "Q)1&"*B" +I $ 1&$&A&" #%)+% &+$ )&M )1 $* +#"%$&)O" I$B& $*< may have

consequences which cannot always be ignored.FG" #$1& B$**+& $>H$M1

@" "%$1"< @M $ *"H À 1+ %A>"< )* &G)1 1$=" B$1"7 the operative fact doctrinedoes not

always apply $*< )1 *+& $ *"B"11$%M B+*1"ZA"*B" +I "O"%M >)I)B$&)+* +I &G" "II"B&1 +I HG$& A1"< &+ @" $ O$>)< >$H H+A>< %"1A>& )*

inequity$*< injustice. Where no such resulting effects would ensue, the

general rule that an unconstitutional law is totally ineffective should

apply.

KM7 &G" 1&%)B&"1& W)*< +I 1B%A&)*M 1G+A>< @" $BB+%$)= &G" @"*"I)& +I &G" +#"%$&)O" I$B& )$*B" I%+= $* "Q#%"11 #%+O)1)+* +I &G" D+*1&)&A&)+* $*< 1G+A>$HN1*A>>)I)B$&)+* &+ %"B+?*)[" &G$& #%)+% &+ )&1 *A>>)I)B$&)+*7 )& H$1 $ >"?$> %"$>)&M

&G$& ?+O"%*"< #$1& $B&1 +% +=)11)+*1. feG$&"O"% H$1 $&)O" +% &G" "Q"BA&)O" $B& H$1 )* +#"%$&)+* 1G+A>< @" M %"B+?*)[")B$&)+* +I &G" *"H

>$H. The Court never looked far back enough to address the cause of

the invalidity, for which reason we find nothing in our jurisprudence

that extended the operative fact doctrine to validate the invalidated law

itself or to absolve its proponents.

b. Application

-)O"* &G" À%)1#%A1 HG+ A*)B +II)B)$>1 %"1#+*1)@>" I+%

&G" "1&$@>)1G="*& $*< )=#>"="*&$&)+* +I &G" UKT.

e)&G %"1#"B& &+ &G" #%+?%$=17 H+%W1 $*< #%+`"B&17 I fully agree with

J. Bersamin &G$& &G" DAP-funded programs, works and projects B$* *+

>+*?"% @" A*+*" $1

&G"M H"%" A*)


57/62

!"#$%$&" (#)*)+* 96 -./. 0+1. 2342567 2348,97 et al.

FG" +I 0CD 0+. 9E8 $*< HG+7 $1 $A&G+%7

B$**+& @" 1$)< &+ G$O" %">)"< +* )& )* &G" B+A%1" +I )&1 +#"%$&)+*. !)*B" G"

A1)+* 1G+A>< $##>M &+ $>> +&G"%1 HG+1" +*>M >)*W &+ &G" UKT

)1 $1 )&1 $A&G+%17 )=#>"="*&+%1 +% #%+#+*"*&1. LI &G"1" #$%&)"17 I+% &G")% +H*

%"$1+*17 H+A>< B>$)= &G" @"*"I)& +I &G" M 1G+H &G")% ?++< I$)&G %">)$*B"R ?++IS>"O)&$&" I%+= $ >$H +% ="$1A%" &G$& G$1

I$>>"* < $##>M ^ &G" UKT )1 $ O+)< ="$1A%" HG)BG )1

>.

FG" ?++< I$)&G A*< @" distinguished from the

good faith considered from the perspective of liability. L& H)>> @" %"B$>>"" A*$H +* #A@>)B +II)B"%1 &G$& #A@>)B $BB+A*&$@)>)&M #+&"*&)$>>M )=#+1"1 a

three-fold liability criminal, civil and administrative against a public

officer. K %A>)*? +I &G)1 W)*< B$* +*>M B+=" I%+= $ &%)@A*$> H)&G )$@)>)&M $*< HG"%" &G" ?++< +% @$ +%

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62/62

Separate Opinion

6 G.R. Nos. 209287 209135

et al.

To be very clear about our positions we can only apply the operative

fact doctrine to the programs, projects and works that can no longer he

undone and where the beneficiaries relied in good faith on the validity

of

theDAP

The authors, proponents and implementors

ofDAP

are

not

among

those who can seek coverage under the doctrine; their

link

to the DAP was

merely to establish and implement the terms that we now find

unconstitutional.

The matter of their good faith in the performance

of

duty or its

absence) and their liability therefor,

i

any, can be made onlv by the proper

tribunals, not by this Court in the present case.

Based on these premises, I concur that the DAP is unconstitutional

and should be struck down. I likewise concur in the application of the

Operative Fact Doctrine as I have explained above and adopted by the

ponencia.

RTURO

D.

BRION

Associate Justice

dap ruling

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