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G.R.No.86926

G.R.No.86926
RepublicofthePhilippines
SUPREMECOURT
Manila
G.R.No.86926October15,1991
CESARE.A.VIRATA,petitioner,
vs.
THEHONORABLESANDIGANBAYAN,andTHEREPUBLICOFTHEPHILIPPINES,respondents.
G.R.No.86949October15,1991
PLACIDOL.MAPA,petitioner
vs.
THEHONORABLESANDIGANBAYAN,andTHEREPUBLICOFTHEPHILIPPINES,respondents.
Angara,Abello.,Concepcion,Regala&Cruzforpetitioners.
DAVIDE,JR.,J.:p
Thesearepetitionsforcertiorariandprohibitionwithaprayerforarestrainingorderand/orinjunctionurgingthisCourt(a)to
reviewandannultheresolutionsofrespondentSandiganbayaninCivilCaseNo.0035entitledRepublicofthePhilippinesvs.
Benjamin(Kokoy)Romualdez,etal.1of28October1988denyingtheseparatemotionstodismissfiledbypetitionersandof20
January1989denyingtheseparatemotionsforreconsiderationfiledbythem,and(b)toissueanordercommandingrespondent
SandiganbayantodesistfromfurtherproceedinginCivilCaseNo.0035.Thefirstpetition(hereinafterreferredtoastheVirata
case)wasfiledon17February1989,whilethesecond(hereinafterreferredtoastheMapacase)wasfiledon20February1989.

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Weearlierorderedtheconsolidationofthesepetitions.
Consideringtheallegationsmade,theissuesraisedandtheargumentsadducedinthePetitions,theCommentoftherespondent
filedbytheSolicitorGeneralineachcase,andthereplies,rejoinderandthesurrejoinderthereafterfiledbytheparties,We
resolvedtogiveduecoursetothepetitions,considertheCommentsastheAnswers,dispensewiththesubmissionoMemoranda
asthepleadingsexhaustivelydiscussandarguetheissues,anddecidethepetitionsontheirrespectivemerits.
Bothpetitionsareanchoredonthefollowinggrounds,towit"
I.TheHonorableSandiganbayanactedwithoutorinexcessofjurisdictionorwithgraveabuseofdiscretioninfindingthatthe
complaintsufficientlystatesacauseofactionagainstpetitionerVirata.
II.TheHonorableSandiganbayanactedwithoutorinexcessofjurisdictionorwithgraveabuseofdiscretioninconcludingthatthe
PCGGandtheSolicitorGeneralhavetheauthoritytofilethecomplaintandtoprosecutethesamedespitetheprovisionsofthe
198Constitutionwhichvests(sic)suchauthorityupontheOfficeoftheTanodbayan.
III.TheHonorableSandiganbayanactedwithoutorinexcessofjurisdictionorwithgraveabuseofdiscretioninconcludingthat
thePCGGaspresentlyconstitutedhasnotbecomefunctusofficio.
IV.TheHonorableSandiganbayanactedwithoutorinexcessofjurisdictionorwithgraveabuseofdiscretioninconcludingthat
thePCGGCharterdoesnotconstitutediscriminatorylegislationviolativeoftheequalprotectionclauseofthe1987Constitution.
V.TheHonorableSandiganbayanactedwithoutorinexcessofjurisdictionorwithgraveabusediscretioninconcludingthatthe
PCGGCharterisnotunconstitutionalandvoidasabillofattainder
VI.TheHonorableSandiganbayanactedwithoutorinexcessofjurisdictionorwithgraveabuseofdiscretioninconcludingthat
thePCGGCharterisnotunconstitutionalasanexpostfactolaw.
VII.TheHonorableSandiganbayanactedwithoutorinexcessofjurisdictionorwithgraveabuseofdiscretioninconcludingthat
petitionerViratawasnotdenieddueprocessoflawevenasnopreliminaryinvestigation,withpriornoticetohimandopportunity
tobehearwasconductedbytheauthorizedgovernmentalagency."2
Theseare,substantially,thesamegroundswhichpetitionersraisedbeforerespondentSandiganbayanintheirseparatemotions
todismisstheSecondAmendedComplaint(ExpandedperCourtApprovedManifestation/MotionActedon8December1989)3
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todismisstheSecondAmendedComplaint(ExpandedperCourtApprovedManifestation/MotionActedon8December1989)3
whichrespondentSandiganbayandeniedinitschallengedresolutionof28October1988,4thepertinentportionofwhichreads:
WearenotimpressedbydefendantsmovantsargumentstosupporttheinstantmotionstodismisstheExpandedAmended
Complaint.HereunderaresetoutthereasonstosupportOurruling.
Firstly,theinstantactionisacivilsuitfortherecoveryofillgottenwealthfiledinaccordancewithExecutiveOrdersNos.1,2and
14,asamended,enactedpursuanttoSectionI(d),ArticleIIofProclamationNo.3,datedMarch25,1986,otherwiseknownas
theFreedomConstitution(Forreference,seepertinentResolutioninRepublicvs.LucioTan,etal.,CivilCaseNo.0005).Itis
completelyseparateanddistinctfromtheproceedingscontemplatedinRepublicActNo.1379,hence,'nopreviousinquirysimilar
topreliminaryinvestigationincriminalcases'needbeconducted.Consideringthepurelycivilnatureoftheinstantcase,therules
onprocedureapply.Consequently,therequirementsofdueprocessandfairness,duenotice,hearingandopportunitytoadduce
evidencearematterswhichareinvolvedpriortothefilingofthecomplaint,sincesuchfilingconnotesthataprimafaciecasehad
beenfoundanddeterminedbythePCGGinaccordancewithitsRulesandRegulationspromulgatedonApril11,1986.
Secondly,amotiontodismissforfailuretostateacauseofactionadmits,forthepurposeofthemotion,thetruthofallfactswell
pleadedinthepleadingattachedand,likewise,anyinferencesfairlydeducibletherefrom.Inotherwords,ithypotheticallyadmits
thetruthoftheallegationsoffactmadeinthecomplaint(Pinerovs.Enriquez,84Phil.774).Thetestiswhetherornot,admitting
thefactsalleged,theCourtcouldrenderavalidjudgmentinaccordancewiththeprayerinthecomplaint(DeJesusvs.
Belarmino,95Phil.365).Anyfactualissuesraisedinplaintiffscauseofactionshouldbethesubjectofafulldresstrial(Socorro
vs.Vargas,25SCRA592).Thecomplaintintheinstantcase,originalandexpanded,containsfive(5)causesofaction,based
notonlyon'GeneralAverments'butalsoon'SpecificAvermentsofDefendants''IllegalActs'(Paragraphs15,(a)to(1)and16).
Perusalthereofclearlysupport(sic)theviewthattheExpandedComplaint,indeed,state(sic)validandsufficientcausesof
action,whereinallegedviolationsoflegalrightsbythedefendantsareaverred(PleaserefertoMaaoSugarCentralCo.vs.
Barrios,79Phil.667,Militantsvs.Edrosolano,39SCRA489).
Thirdly,thejurisdictionofthisCourtoverthepersonsofthedefendantsmovantsandthesubjectmatteroftheExpanded
Complaintintheinstantcases,aswellasinothercasesofthesamenaturependingbeforeallthreeDivision(sic)ofthisCourt,
cannotbevalidlydisputedorobjectedto.ExecutiveOrdersNos.1,2and14,asamended,constitutetheveryrootsandsources
ofOurauthoritytoacceptfilingofcomplaintsfortherecoveryofillgottenwealth.Onceitisshownthatsaidcomplaintsarefiled
withinthetimeconstraintsprovidedinthe1987Constitution,(Sections26,27andArticleXVIIoftheTransitoryProvisions),this
Courtisvestedwiththeappropriateauthoritytotryanddecidetheissuesraisedtherein.(Sections2and3ExecutiveOrderNo.
14,asamended).TheoriginalandexclusivejurisdictionofthisCourtovercasesfortherecoveryofillgottenwealthaccumulated
bythepersonsmentionedinExecutiveOrderNos.1and2havebeenexpresslyconfirmedbytheHon.SupremeCourtinthe

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bythepersonsmentionedinExecutiveOrderNos.1and2havebeenexpresslyconfirmedbytheHon.SupremeCourtinthe
leadingcasesofBataanShipyard&EngineeringCo.,Inc.(BASECO)vs.PCGG,etal.(G.R.No.75885,June30,1988)1PCGG
vsHon.EmmanuelG.Pena,etal.(G.R.No.77663,April12,1988)anOfeliaTrinidadvs.PCGG,etal.(G.R.No.77695,June16,
1988)Soriano,etal.vs.Hon.Manuel(sic)Yuzon,EduardoCojuanco,etalvs.SEC,etal.,andCliftonGanayvs.PCGG,(G.R.
Nos.74910,75075,75094,76397,79549and75250,August10,1988).Lately,theHonSupremeCourtupheldthedismissalby
thisCourtofthemotiontodismissfiledbyJ.Chua,oneofthedefendantsintheBinondoCentralBankcase(PCGGCaseNo.
0017)questioningtheserviceofsummonandtheAmendedComplaintuponhim.(G.R.No.83428,July2,1988).
Fourthly,neitherdoWefindvalidand/orjustifiedtheobjectionstotheconstitutionandmembershipofthePCGGwhentheinstant
casewasfiled,itbeingseeminglyindicativeofabankruptcyofargumentation.Norarethereanytaint(sic)ofunconstitutionality
(re:equalprotection,billofattainderorexpostfactolaw),consideringthat(1)areasonablestandardorclassificationexist(sic)
whereinpersonssimilarlysituatedarechargedandaccordeddueprocess(thesequestration,freeze/holdordersand
provisionaltakeoveraremereprovisionalremediesapplicablegenerallyand/orpeculiarlyunearthedinstancesofillgotten
wealth(3)thereare(sic)nopreclusionofenactmentsimpartingpenalorcriminaltainttoconductbereftsuchcharacter,and,(4)
nodivestmentoftitleoverpropertyseized(BASECOvs.PCGG,supra)."
Petitioners'separatemotionstoreconsiderthesamehavingbeendeniedbyrespondentSandiganbayaninitsresolutionof20
January1989onthegroundthattheyarerepetitionsoftheargumentsinthemotiontodismissandthattheresolutionof28
October1988amplydiscussedanddisposedofthesame,petitionersseparatelyfiledtheinstantpetitions.
Theantecedentfactsandproceedingsgenerativeoftheinstantpetitionsareasfollows:
On31July1987,theRepublicofthePhilippines,representedbythePresidentialCommissiononGoodGovernment(PCGG),
assistedbytheSolicitorGeneral,filedacomplaintwiththerespondentSandiganbayan(SB)againstBenjamin(Kokoy)
Romualdezandfortyfour(44)others5for,asstatedundertheheadingNatureoftheAction,recoveryof"illgottenwealth
consistingoffundsandotherpropertywhichthey,inunlawfulconcertwithoneanother,hadacquiredandaccumulatedinflagrant
breachoftrustandoftheirfiduciaryobligationsaspublicofficers,withgraveabuseofrightsandpowerandinbrazenviolationof
theConstitutionandlawsoftheRepublicofthePhilippines,thusresultingintheirunjustenrichmentduringDefendantFerdinand
E.Marcos'20yearsofrulefromDecember30,1965toFebruary25,1986....'Itisfurtherallegedthereinthat"thewrongs
committedbydefendants,actingsinglyandcollectively,andinunlawfulconcertwithoneanother,includethemisappropriation
andtheftofpublicfunds,plunderofthenation'swealth,extortion,blackmail,bribery,embezzlementandotheractsofcorruption,
betrayalofpublictrustandbrazenabuseofpower."6
TheabovecomplaintwasdocketedasCivilCaseNo.0035.Itunderwentthree(3)amendments.TheAmendedComplaintwas

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TheabovecomplaintwasdocketedasCivilCaseNo.0035.Itunderwentthree(3)amendments.TheAmendedComplaintwas
filedon20August19877theSecondAmendedComplaintwasfiledon4November19878andtheSecondAmended
Complaint,asexpandeduponappropriatemotiondulyapprovedbyrespondentSB,wasfiledon20January1988.9
ThisexpandedSecondAmendedComplaint,whichmaintainstheallegationsundertheheadingNatureoftheActioninthe
originalandtheAmendedcomplaints,impleadsasadditionalcodefendantsJoseF.S.Bengzon,Jr.,JoseVicenteJimenez,
AmandoFaustino,Jr.,LeonardoC.Cruz,EugeniaMunoz,RexDrilon,JoseManteconandKurtBachmann,Jr.and,sofaras
pertinentandrelevantinthesepetitions,alleges,interalia:
(A)UndertheheadingTHEPARTIES,thatpetitioners,withtheothercodefendantsspecificallynamed,aredummies,nominees
oragentsofdefendantsBenjamin(Kokoy)Romualdez,FerdinandE.Marcos,andImeldaR.Marcosforhavingallowed
themselvestobeincorporators,directors,boardmembersand/orstockholdersofcorporationsbeneficiallyheldand/orcontrolled
bysaiddefendantsBenjamin(Kokoy)RomualdezFerdinandE.MarcosandImeldaR.Marcos.10
(B)AllegesundertheheadingGENERALAVERMENTSOFDEFENDANTS'ILLEGALACTS,that:
xxxxxxxxx
9.(a)Fromtheearlyyearsofhispresidency,DefendantFerdinandE.MarcostookundueadvantageofhispowersasPresident.
AllthroughouttheperiodfromSeptember21,1972toFebruary25,1986,hegravelyabusedMspowersundermartiallawand
ruledasDictatorunderthe1973MarcospromulgatedConstitution.DefendantFerdinandE.Marcos,togetherwithother
Defendants,actingsinglyorcollectively,and/orinunlawfulconcertwithoneanother,inflagrantbreachofpublictrustandoftheir
fiduciaryobligationsaspublicofficers,withgrossandscandalousabuseofrightandpowerandinbrazenviolationofthe
ConstitutionandlawsofthePhilippines,embarkeduponasystematicplantoaccumulateillgottenwealth
(b)Uponhisunfettereddiscretionandsoleauthority,forthepurposeofimplementingtheplanreferredtoabove,Defendant
FerdinandE.Marcosorderedandcaused,amongothers:
(bi)themassiveandunlawfulwithdrawaloffunds,securities,reservesandotherassetsandpropertyfromtheNationalTreasury,
theCentralBank,theotherfinancialinstitutionsanddepositoriesofPlaintiff
(bii)thetransferofsuchfunds,securitiesreservesandotherassetsandpropertytopayeesortransfereesofhischoiceand
whetherandinwhatmannersuchtransactionsshouldberecordedinthebooksandrecordsoftheseinstitutionsandother
depositoriesofPlaintiff

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10.Amongothers,infurtheranceoftheplanandacting,inthemannerreferredtoabove,inunlawfulconcerted(sic)withone
anotherandwithgrossabuseofpowerandauthority,DefendantsFerdinandE.MarcosandImeldaR.Marcos:
(a)confiscatedand/orappropriatedforthemselveslargeprivateenterprises,particularlythosebelongingtoopponentsofthe
Marcosregime,totheseriousdetrimentandmaterialdamageoftheirownersaswellasthecorporationandbankingsystemof
thecountry
(b)convertedgovernmentownedandcontrolledcorporationsintoprivateenterprisesandappropriatedthemand/ortheirassets
fortheirownbenefitandenrichment
(c)awardedcontractswiththeGovernmenttotheirrelatives,businessassociates,dummies,nominees,agentsorpersonswho
arebeholdentosaiddefendants,undertermsandconditionsgrosslyandmanifestlydisadvantageoustotheGovernment
(d)misappropriated,embezzledand/orconvertedtotheirownusefundsofgovernmentfinancialinstitutions,particularlythose
allocatedtotheOfficeofthePresidentandotherministriesandagenciesofthegovernmentincluding,thoseconveniently
denominatedasintelligenceorcounterinsurgencyfunds,aswellasfundsprovidedtoPlaintiffbyforeigncountries,multinational,
publicandprivatefinancialinstitutions
(e)raidedGovernmentfinancialandbankinginstitutionsofbillionsofpesosinloans,guaranteesandothertypesoffinancial
accommodationstofinancedubiousand/oroverpricedprojectsoffavoredcorporationsorindividualsandmisusedand/or
convertedtotheirownuseandbenefitdepositsfoundthereintothefinancialruinofPlaintiffandtheFilipinopeople
(f)extorted,demandedandreceivedimproperpaymentsintheformof,amongothers,commissions,bribesandkickbacksfrom
personsandcorporationsenteringintocontractswiththeGovernment,orexactingfromtheGovernmentoritsagenciesor
instrumentalitiesforthemselvesorforthirdpersons,permits,licenses"orconcessionswhichwerethenrequiredinorderto
engageinparticularbusinessactivities
(g)establishedmonopoliesandcombinationsinrestraintoftradeinvariousfieldsofcommerceandagriculture,aswellasin
gambling,tofacilitatetheirexploitationfortheirownbenefitandenrichment
(h)sold,conveyedand/ortransferredGovernmentproperty,realand/orpersonal,tocorporationsbeneficiallyheldand/or
controlledbythemorthroughthirdpersons,undersuchtermsandconditionsgrosslyandmanifestlydisadvantageoustothe

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controlledbythemorthroughthirdpersons,undersuchtermsandconditionsgrosslyandmanifestlydisadvantageoustothe
Government
(i)engagedinotherillegalandimproperactsandpracticesdesignedtodefraudPlaintiffandtheFilipinopeople,orotherwise
misappropriatedandconvertedtotheirownuse,benefitandenrichmentthelawfulpatrimonyandrevenuesofPlaintiffandthe
Filipinopeople.
11.AmongtheassetsacquiredbydefendantsinthemannerabovedescribedanddiscoveredbytheCommissionintheexercise
ofitsofficialresponsibilities(sic)arefundsandotherpropertylistedinAnnex"A"hereofandmadeanintegralpartofthis
Complaint.
12.Defendants,actingsinglyorcollectively,and/orinunlawfulconcertwithoneanother,forthepurposeofpreventingdisclosure
andavoidingdiscoveryoftheirunmitigatedplunderoftheNationalTreasuryandoftheirotherillegalacts,andemployingthe
servicesoprominentlawyers,accountants,financialexperts,businessmenandotherpersons,deposited,keptandinvested
funds,securitiesandotherassetsestimatedatbillionsofUSdollarsinvariousbanks,financialinstitutions,trustorinvestment
companiesandwithpersonshereandabroad.11
(C)UndertheheadingSPECIFICAVERMENTSOFDEFENDANTS'ILLEGALACTS,that:
xxxxxxxxx
14.DefendantsBenjamin(Kokoy)RomualdezandJulietteGomezRomualdez,actingbythemselvesand/orinunlawfulconcert
withDefendantsFerdinandE.MarcosandImeldaR.Marcos,antakingundueadvantageoftheirrelationship,influenceand
connectionwiththelatterDefendantspouses,engagedindevices,schemesanstratagemstounjustlyenrichthemselvesatthe
expenseofPlaintiffandtheFilipinopeople,amongothers:
xxxxxxxxx
(b)gaveMERALCOundueadvantage(i)byeffectingtheincreaseofpowerrateswithautomaticauthoritytotackintothe
consumers'electricbillsthesocalledpurchasedandcurrencyadjustment,and(ii)withtheactivecollaborationofDefendant
CesarEA.Virata,byreducingtheelectricfranchisetaxfrom5%to2%ofgrossreceiptsandthetariffdutyonfueloilimportsby
publicutilitiesfrom20%to10%,resultinginsubstantialsavingsforMERALCObutwithoutanysignificantbenefittothe
consumersofelectricpowerandlossofmillionsofpesosinmuchneededrevenuestothegovernment
xxxxxxxxx

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(g)secured,inaveiledattempttojustifyMERALCO'sanomalousacquisitionoftheelectriccooperatives,withtheactive
collaborationsofDefendantsCesarE.A.Virata,JuanitoR.Remulla,IsidroRodriguez,JoseC.Hernandez,PedroDumol,Ricardo
C.Galing,FranciscoC.Gatmaitan,MarioD.CamachoandtherestoftheDefendants,theapprovalbyDefendantFerdinandE.
MarcosandhiscabinetofthesocalledYearProgramfortheExtensionofMERALCO'sServicestoAreasWithinthe60Kilometer
RadiusofManila,whichrequiredgovernmentcapitalinvestmentamountingtominionsofpesos
xxxxxxxxx
(m)manipulated,withthesupport,assistanceandcollaborationofPhilguaranteeofficialsledbyChairmanCesarE.A.Virataand
theseniormanagersofFMMC/PNIHoldings,Inc.ledbyJoseS.Sandejas,Jr.,JoseM.ManteconandKurtS.Bachmann,Jr.,
amongothers,theformationofErectorsHoldings,Inc.withoutinfusingadditionalcapitalsolelyforthepurposeofmakingit
assumetheobligationofErectorsIncorporatedwithPhilguaranteeintheamountofP527,387,440.71withinsufficient
securities/collateralsjusttoenableErectors,Inc.toappearviableandtoborrowmorecapitals(sic),somuchsothatitsobligation
withPhilguaranteehasreachedatotalofmorethanP2BillionasofJune30,1987
xxxxxxxxx
17.ThefollowingDefendantsactedasdummies,nomineesand/oragentsbyallowingthemselves(i)tobeusedasinstrumentsin
accumulatingillgottenwealththroughgovernmentconcessions,ordersand/orpoliciesprejudicialtoPlaintiff,or(ii)tobe
incorporators,directors,ormembersofcorporationsbeneficiallyheldand/orcontrolledbyDefendantsFerdinandE.Marcos,
ImeldaR.Marcos,Benjamin(Kokoy)T.RomualdezandJulietteGomezRomualdezinorderconceal(sic)andpreventrecovery
ofassetsillegallyobtained:FranciscoTantuico,...,CesarE.AVirata,...,PlacidoMapa,Jr.,...
18.TheactsofDefendants,singlyorcollectively,and/orinunlawfulconcertwithoneanother,constitutegrossabuseofofficial
positionandauthority,flagrantbreachofpublictrustandfiduciaryobligations,acquisitionofunexplainedwealth,brazenabuseof
rightandpower,unjustenrichment,violationoftheConstitutionandthelawsoftheRepublicofthePhilippines,tothegraveand
irreparabledamageofPlaintiffandtheFilipinopeople."
(D)UndertheheadingCAUSESOFACTIONthat:
19.FirstCauseofAction:BREACHOFPUBLICTRUSTApublicofficeisapublictrust.Bycommittingalltheactsdescribed
above,Defendantsrepeatedlybreachedpublictrustandthelaw,makingthemjointlyandseverallyliabletoPlaintiff.Thefunds
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above,Defendantsrepeatedlybreachedpublictrustandthelaw,makingthemjointlyandseverallyliabletoPlaintiff.Thefunds
andotherpropertyacquiredbyDefendantsfollowing,orasaresultof,theirbreachofpublictrustaredeemedtohavebeen
acquiredforthebenefitofPlaintiffandare,therefore,impressedwithconstructivetrustinfavorofPlaintiffandtheFilipinopeople.
Consequently,DefendantsaresolidarilyliabletoreturnorreconveytoPlaintiffallsuchfundsandpropertythusimpressedwith
constructivetrustforthebenefitofPlaintiffandtheFilipinopeople
20.SecondCauseofAction:ABUSEOFRIGHTANDPOWER(a)Defendants,inperpetratingtheunlawfulactsdescribed
above,committedabuseofrightandpowerwhichcauseduntoldmisery,sufferingsanddamagestoPlaintiff.Defendantsviolated,
amongothers,Articles19,20,and21oftheCivilCodeofthePhilippines
(b)Asaresultoftheforegoingacts,Defendantsacquiredtitletoandthebeneficialinterestinfundsandotherpropertyand
concealedsuchtitle,fundsandintereststhroughtheuseofrelatives,businessassociates,nominees,agentsordummies.
Defendantsare,therefore,jointlyandseverally,liabletoPlaintifftoreturnandreconveyallsuchfundsandotherproperty
unlawfullyacquired,oralternatively,topayPlaintiff,jointlyandseverally,bywayofindemnity,thedamagecausedtoPlaintiff
equivalenttotheamountofsuchfundsorthevalueofotherpropertynotreturnedorrestoredtoPlaintiff,plusinterestthereon
fromthedateofunlawfulacquisitionuntilfullpayment.
21.ThirdCauseofAction:UNJUSTENRICHMENTDefendantsillegallyaccumulatedfundsandotherpropertyinviolationofthe
lawsofthePhilippinesandinbreachoftheirofficialfunctionsandfiduciaryobligations.Defendants,therefore,haveunjustly
enrichedthemselvestothegraveandirreparabledamageandprejudiceofPlaintiff.Defendantshaveanobligationatlaw,
independentlyofbreachoftrustandabuseofrightandpowerand,asanalternative,jointlyandseverallyreturntoPlaintiffsuch
fundsandotherpropwithwhichDefendants,ingrossevidentbadfaith,haveunjustlyenrichedthemselvesor,indefaultthereof,
restoretoPlaintifftamountofsuchfundsandthevalueoftheotherpropertyincludethosewhichmayhavebeenwasted,and/or
lost,withinteresttheretofromthedateofunlawfulacquisitionuntilfullpayment
22.FourthCauseofAction:ACCOUNTINGTheCommission,actingpursuanttotheprovisionsofapplicablelaw,respectfully
maintainsthatDefendants,actingsinglyorcollectively,and/orinunlawfulconcertwithoneanother,acquiredfunds,assetsand
propertyduringtheincumbencyofDefendantpublicofficers,manifestlyoutofproportiontotheirsalaries,totheirotherlawful
incomeandincomefrolegitimatelyacquiredproperty.Consequently,theyarerequiredshowtothesatisfactionofthisHonorable
Courtthattheyhavelawfullyacquiredallsuchfunds,assetsandpropertywhichareinexcessoftheirlegalnetincome,andfor
thisHonorableCourttodecreethattheDefendantsareunderobligationtoaccounttoPlaintiffwithrespecttoalllegalor
beneficialinterestinfunds,propertiesandassetsofwhateverkindandwhereverlocatedinexcessofthelawfulearningsorlawful
incomefromlegitimatelyacquiredproperty
23.FifthCauseofAction:LIABILITYFORDAMAGES(a)Byreasonoftheunlawfulactssetforthabove,PlaintiffandtheFilipino

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peoplehavesufferedactualdamagesinanamountrepresentingthepecuniarylosssustainedbythelatterasaresultof
Defendants'unlawfulacts,theapproximatevalueandinterestonwhichfromthetimeoftheirwrongfulacquisition,plusexpenses
whichPlaintiffhasbeencompelledtoincurandshallcontinuetoincurinitsefforttorecoverDefendants'illgottenwealthallover
theworld.Defendantsare,therefore,jointlyandseverallyliabletoPlaintiffforactualdamagesandforexpensesincurredinthe
recoveryofDefendants'illgottenwealth
(b)AsaresultofDefendants'unlawful,malicious,immoralandwantonactsdescribedabove,PlaintiffandtheFilipinopeoplehad
painfullyenduredandsufferedformorethantwentylongyears,andstillcontinuetoendureandsufferanguish,fright,sleepless
nights,seriousanxiety,woundedfeelingsandmoralshock,aswellasbesmirchedreputationandsocialhumiliationbeforethe
internationalcommunity,forwhichDefendantsarejointlyandseverallyliabletoPlaintiffandtheFilipinopeopleformoral
damages
(c)Inaddition,PlaintiffandtheFilipinopeopleareentitledtotemperatedamagesfortheirsufferingswhich,bytheirverynature,
areincapableofpecuniaryestimation,butwhichthisHonorableCourtmaydetermineintheexerciseofitssounddiscretion
(d)Defendants,byreasonoftheabovedescribedunlawfulacts,haveviolatedandinvadedtheinalienablerightofPlaintiffand
theFilipinopeopletoafairanddecentwayoflifebefittingaNationwithrichnaturalandhumanresources.Thisbasicand
fundamentalrightofPlaintiffandtheFilipinopeopleshouldberecognizedandvindicatedbyawardingnominaldamagesinan
amounttobedeterminedbytheHonorableCourtintheexerciseofitssounddiscretion
(e)BywayofexampleandcorrectionforthepublicgoodandinordertoensurethatDefendants'unlawful,malicious,immoral
andwantonactsarenotrepeated,saidDefendantsarejointlyandseverallyliabletoPlaintiffforexemplarydamages."12
(E)ItthenpraysforjudgmentorderingDefendantstoreturnandreconveytoPlaintiffanfundsandotherpropertyimpressedwith
constructivetrustinfavorofPlaintiffandFilipinopeople,toaccounttoPlaintiffalllegalorbeneficialinterestinfunds,properties
andassetsinexcessoftheirlaearnings,andtopayPlaintiffactual,moral,temperate,nominal,andexemplarydamagesand
attorney'sfees.13
WeshallnowturnOurattentiontothegroundsrelieduponithesepetitions.
NodoubtisleftinOurmindsthatthequestionedexpandedSecondAmendedComplaintiscraftedtoconformtoawellplanned
outlinethatforthwithfocusesone'sattentiontoassertedrightoftheState,expresslyrecognizedandaffirmedbythe1987
Constitution,14anditscorrespondingduty,15torecoverillgottenwealthfromthedefendantsnamedtheretheallegedschemes
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anddevicesusedandthemanipulationsmadebythemtoamasssuchillgottenwealth,whichareaverredfirstgenerallyand
thenspecificallyandtheextentofthereliefsdemandedandprayedfor.However,asshownabove,themaofunnecessary
literaryembellishmentsmayindeedraisesodoubtsonthesufficiencyofthestatementofmaterialoperatefactstofleshoutthe
causesofaction.Bethatasitmay,Wenevertheless,convincedthatthequestionedpleadinghassufficientlyshownviablecauses
ofaction.
Theessentialelementsofacauseofactionarealegalrighttheplaintiff,acorrelativeobligationofthedefendant,andaactor
omissionofthedefendantviolativeofsaidlegalright.16Thetestofsufficiencyofthefactstoconstituteacauseofactionis
whetherornot,admittingthefactsalleged,thecourtcouldrenderavalidjudgmentuponthesameinaccordancewithprayer.17
AsstatedinAdamosvs.JM.Tuason&Co.,Inc.,18"Itisawellsettledrulethatinamotiontodismissbasedonthegroundthat
thecomplaintfailstostateacauseofaction,thequestionsubmittedtothecourtfordeterminationisthesufficiencyofthe
allegationsinthecomplaintitself.Whethertheseallegationsaretrueornotisbesidethepoint,fortheirtruthishypothetically
admitted.Theissueratheris:admittingthemtobetrue,maythecourtrenderavalidjudgmentinaccordancewiththeprayerin
thecomplaint?...Sorigidisthenormprescribedthatifthecourtshoulddoubtthetruthofthefactsaverred,itmustnotdismiss
thecomplaintbutrequireananswerandproceedtohearthecaseonthemerits."19
Ifpetitionersperceivesomeambiguityorvaguenesstherein,theremedyisnotamotiontodismiss.Anactionshouldnotbe
dismisseduponamereambiguity,indefinitenessoruncertainty,forthesearenotgroundsforamotiontodismiss,butratherfora
billofparticulars.20Militantevs.Edrosolano,etal21prescribestheproperjudicialattitudewhenconfrontedbysuchaproblem:
...Thejudiciaryisexpectedthentoexerciseutmostcarecircumspectioninpassinguponamotiontodismissonthegroundthe
absencethereof[causeofaction]lest,byitsfailuretomanifestcorrectappreciationofthefactsallegedanddeemed
hypotheticallyadmitted,whatthelawgrantsorrecognizesiseffectivelynullified.Ifthathappens,thereisablotonthelegalorder.
Thelawitselfstandsindisrepute.
ThepowerofthePCGGtofileandprosecute,withtheassistanceoftheSolicitorGeneral,allcasesinvestigatedbyitpursuantto
ExecutiveOrderNo.14,inrelationtoExecutiveOrdersNo.1andNo.2,remainsinfullforceandeffect.Itwasnottakenawayby
theprovisionsofthe1987ConstitutionontheTanodbayan.Asamatteroffact,theConstitutionrecognizestpowerwhen,in
referencetotherecoveryofillgottenwealth,didnotdivestthePCGGofsaidpowerbutmerelyfixesdeadlinefortheexerciseof
theauthoritytoissuesequestrateorfreezeordersunderProclamationNo.3dated25March19andprovidesthesafeguardsin
itsissuance,includingtheregistrationwiththepropercourtoftheorderandthelistofsequesteredorfrozenproperties,andthe
filingofthecorrespondingjudicialactionorproceeding.22Sections1and2ExecutiveOrderNo.14,whichread:
SECTION1.Anyprovisionofthelawtothecontrarynotwithstanding,thePresidentialCommissiononGoodGovernment,with
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assistanceoftheOfficeoftheSolicitorGeneralandothergovernmentagencies,isherebyempoweredtofileandprosecuteall
casesinvestigatedbyitunderExecutiveOrderNo.1,datedFebruary28,1986,ExecutiveOrderNo.2,datedMarch12,1986,as
maybewarrantedbyitsfindings.
SECTION2.ThePresidentialCommissiononGoodGovernmentshallfileallsuchcases,whethercivilorcriminal,withthe
Sandiganbayan,whichshallhaveexclusiveandoriginaljurisdictionthereof.
wasenactedbythePresidenton8May1986,orafterpromulgationon25March1986ofProclamationNo.3(Provisional
ConstitutionoftheRepublicofthePhilippines).ThatcontinuingpowerofthePCGGaboveoutlinedhasbeesustainedbythis
CourtinBataanShipyardandEnginesCo.,Inc.vs.PresidentialCommissiononGoodGovernment,etal.,23PCGGvs.Pena,et
al.,24Soriano,etal.vs.Yuson,etal.,Cojuangco,etal.vs.SEC.,etal.,Ganayvs.PCGG,BoardDirectorsofSMC,etal.vs.
SEC,etal.,Cojuangco,etal.vs.Laggui,etal.,NepterniaCorp.,etal.vs.PCGG,etal.,25Cojuangco,Jr.vs.PCGG,etal.,26
andRomanCruzvs.Sandiganbayan,etal.27
InPCGGvs.Pea,supra,Weruled:
2.TheseamplepowersandauthorityvestedintheCommissionbythePresidentintheexerciseoflegislativepowergrantedher
inProvisional(Freedom)ConstitutionwereconfirmedinsaidConsandinthe1987Constitution...."(Emphasissupplied).
InCojuangco,Jr.vs.PCGG,etal.,supra.,Weheld:
xxxxxxxxx
Fromtheforegoingprovisionsoflaw,particularlySections2(and3(a)ofExecutiveOrderNo.IandSections1and2ofExecutive
OrderNo.14,itisclearthatthePCGGhasthepowertoinvestigateandprosecutesuchillgottenwealthcasesoftheformer
President,hisrelativesandassociates,andgraftandcorruptpracticescasesmaybeassignedbythePresidenttothePCGGto
befiledwiththeSandiganbayan.Nodoubt,theauthoritytoinvestigateextendedtothePCGGincludestheauthoritytoconducta
preliminaryinvestigation.
Thus,theTanodbayanlosttheexclusiveauthoritytoconductpreliminaryinvestigationofthesetypesofcasesbythe
promulgationofExecutiveOrders1and14wherebythePCGGwasvestedconcurrentjurisdictionwiththeTanodbayanto
conductsuchpreliminaryinvestigationandtoprosecutesaidcasesbeforetheSandiganbayanThepowerofthePCGGto
conductpreliminaryinvestigationofaforementionedtypesofcaseshasbeenrecognizedbythisCourtinBataanShipyardand
EngineeringCo.,Inc.(BASECO)vs.PCGG
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EngineeringCo.,Inc.(BASECO)vs.PCGG
xxxxxxxxx
ThisCourt,inZaldivar,interpretingtheaforesaidprovisiontheConstitution,particularlySection13(1)thereofvestingonthe
Ombudsmantherightandthepowertoinvestigateonitsownoroncomplaint,anyactoromissionofanypublicofficial,
employee,officeoragencywhichappearstobeillegal,unjust,improper,orinefficientheldthatthegeneralpowerofinvestigation
coversthelesserpowerconductapreliminaryinvestigation.Thus,asthepowerofinvestigationvestedontheOmbudsman
undertheConstitutionincludespowertoconductsuchapreliminaryinvestigation,thenthespecialprosecutor(former
Tanodbayan)maynolongerconductsuchapreliminaryinvestigationunlessdulyauthorizedbytheOmbudsman.
AreadingoftheforegoingprovisionoftheConstitutiondoesnshowthatthepowerofinvestigationincludingpreliminary
investigationvestedontheOmbudsmanisexclusive.Hence,thesaidprovisionoftheConstitutiondidnotrepealorremovethe
powertoconductinvestigation,includingtheauthoritytoconductapreliminaryinvestigation,vestedonthePCGGbyExecutive
OrdersNos.1and14.
AlthoughunderSection26ofArticleXVIIIoftheConstitutiontauthorityofthePCGGtoissuesequestrationorfreezeordersw
maintainedfornotmorethaneighteenmonthsaftertheratificationtheConstitution,itcannotbeconstruedtherebythatitspower
investigationhadtherebybeenrevokedbythefailuretoreiteratespowerintheConstitution
xxxxxxxxx
UnderSection15(1)ofRepublicActNo.6770aforecited,Ombudsmanhasprimaryjurisdictionovercasescognizableby
Sandiganbayansothatitmaytakeover,atanystagefrominvestigatoryagencyofthegovernment,theinvestigationof8cases.
TheauthorityoftheOmbudsmantoinvestigateoffensesinvolvingpublicofficersoremployeesisnotexclusivebutisconcurrent
withothersimilarlyauthorizedagenciesofthegovernment.SuchinvestigatoryagenciesreferredtoincludethePCGG...
xxxxxxxxx
ItisalsonotedthatunderSection15(11)oftheaforesaidRepublicActNo.6770,amongthepowersvestedontheOmbudsman
isinvestigateandtoinitiatetheproperactionforrecoveryofillgottenwealthand/orunexplainedwealthamassedafter25
February19andtheprosecutionofthepartiesinvolvedtherein....thisprovisionisatacitrecognitionthattheauthorityofthe
PCGGtoconductpreliminaryinvestigationofillgottenwealthand/orunexplainedwealthamassedbeforeFebruary25,1986is
maintained."

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maintained."
xxxxxxxxx
ThePCGGneverbecamefunctusofficio.Petitioners'claimthatitdidbecausepersonswhowereoriginallynamedinExecutive
OrderNo.1tocomposeit28havelongceasedtobmembersthereofisdismallyabsurdandgroundless.Petitionersknowthat
anofficeisseparateanddistinctfromtheholderthereofandWefindnopossibleexplanation,exceptperhapstheirsheer
reluctancetoreadExecutiveOrderNo.1,astohopetitionerswouldhavemissedthetitleofsaidOrderwhichreadsCreatingThe
PresidentialCommissiononGoodGovernmentandSection1thereofthefirstclauseofwhichreads:"Thereisherebycreateda
CommissiontobeknownasthePresidentialCommissiononGoodGovernment...
ThePCGGCharter(composedofExecutiveOrdersNos.1,2and14)doesnotviolatetheequalprotectionclauseandisnotabill
ofattainderoranexpostfactolaw.Theconstitutionalityoflawsispresumed.Tojustifynullificationofalaw,theremustbeaclear
andunequivocalbreachoftheConstitution,notadoubtfulorargumentativeimplicationalawshagnotbedeclareinvalidunless
theconflictwiththeConstitutionisclearbeyondareasonabledoubt.29"Thepresumptionisalwaysinfavorofconstitutionality....
Todoubtistosustain."30Petitionhavenotacquittedthemselvesofthedutytodemonstratesuchaconflictortorebutthat
presumption.Onthecontrary,OurdisquisitionsinBASECOvs.PCGG,supra.,andPCGGvPena,supra.,unequivocallysustain
andaffirmtheconstitutionalityofthePCGGCharter.Thereisvalidandreasonablebasisfortheclassification.Inthelattercase,
Westated:
Hence,theimperativeneedfortheGovernmentoftherestoredRepublicasitsfirstofficialacttocreatetheCommissionasa
administrativeandquasijudicialcommissiontorecovertheillgottenwealth'amassedfromvastresourcesofthegovernmentby
theformPresident,hisimmediatefamily,relativesandcloseassociates.'
IntheBASECOcase,Weexpresslystated:
NeitherwilltillsCourtsustainthetheorythattheexecuteordersinquestionarebillofattainder(sic).Abillofattainderis
legislativeactwhichinflictspunishmentwithoutjudicialtrial.Itsessenceisthesubstitutionofalegislativeforajudicial
determinationofguilt.
Inthefirstplace,nothingintheexecutiveorderscanbereasonablyconstruedasadeterminationordeclarationofguilt.On
contrary,theexecutiveorders,inclusiveofExecutiveOrderNo.1makeitperfectlyclearthatanyjudgmentofguiltinthe
amassingacquisitionof'illgottenwealth'istobehandeddownbyajudicialtribunal,inthiscasetheSandiganbayan,upon
complaintfiledanprosecutedbythePCGG.Inthesecondplace,nopunishmentinflictedbytheexecutiveorders,asthemerest

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complaintfiledanprosecutedbythePCGG.Inthesecondplace,nopunishmentinflictedbytheexecutiveorders,asthemerest
glanceattheirprovisionswillimmediatelymakeapparent.Innosense,therefore,maytexecutiveordersberegardedasabillof
attainder(sic).
EquallyuntenableistheclaimthatthePCGGCharterispostfactobecauseitaltersthelegalrulesofevidenceareceiveslessor
differenttestimonythanwhatthelawrequiredatthetimeofthecommissionoftheoffenseinordertoconvicttheoffender.
ForboththecivilandcriminalcasescoveredbythePCGGCharter,nothinghasbeenalteredintermsofthequantumoproof
requiredforanadversejudgmentagainstthedefendantorajudgmentofconvictionagainsttheaccused,respectivelyThe
plaintiffsburdentoestablishapreponderanceofevidenceintheformerandproofbeyondreasonabledoubtinthelatterhasnot
beenalteredormodified.
AscorrectlyruledbytherespondentSandiganbayan,thechallengedcasebeforeitisnotacriminalcasebutacivilsuit
Accordingly,nopreviousinquirysimilartopreliminaryinvestigationincriminalcasesneedbeconducted.
WHEREFORE,forwantofmerit,theinstantpetitionsDISMISSED.Costsagainstpetitioners.
SOORDERED.
Fernan,C.J.Cruz,Paras,Padilla,GrioAquino,MedialdeaandRegalado,JJ.,concur.
Narvasa,J.,tooknopart.
MelencioHerrera,J.,isonleave.

SeparateOpinions
GUTIERREZ,JR.,J.,dissenting:
Iamconstrainedtodissentfromthemajorityopinionwhichdismissesthepetitionsfiledinthesecases.
Thecomplaints,insofarastheyrefertoMessrs.VirataMapa,consistofmereinferencesandgeneralconclusionscannotgive
risetoanycauseofactionagainstthem.Merestatingthatthepetitionersengagedinvariouskindsofdiabolicalevilsagainstthe
Filipinopeoplewithnostatementsoultimatefactstosupportthesweepingandpolemicalchargecannotsubstituteforacauseof

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Filipinopeoplewithnostatementsoultimatefactstosupportthesweepingandpolemicalchargecannotsubstituteforacauseof
action.Thepetitionershavebeencarelesslysweptintoanallencompassingnetthrownover45persons.Theirnotbelongingto
thegroupforwhomthenetshouldhavebeencastcallsforthegrantofthepetitions.
OnFebruary18,1985,aboutoneyearbeforetheEDSAupheaval,thiscourtemphaticallystated:
Infinitelymoreimportantthanconventionaladherencetogeneralrulesofcriminalprocedureisrespectforthecitizen'srightto
freenotonlyfromarbitraryarrestandpunishmentbutalsofrounwarrantedandvexatiousprosecution.Theintegrityofa
democraticsocietyiscorruptedifapersoniscarelesslyincludedinthetrialaroundfortypersonswhenontheveryfaceofthe
recordnoevidencelinkinghimtotheallegedconspiracyexists.(Salongav.CruzPano134SCRA438,448[1985])
InSalongav.CruzPao,thepetitioner,nowPresidentoftheSenateofthePhilippines,askedustoprohibitandpreventthe
respondentsfromusingtheironarmofthelawtoharass,oppress,andpersecutehim,amemberofthethendemocratic
oppositioninthePhilippines.TheCourtgrantedhispetition.
AsimilarpleaisnowmadebyformerPrimeMinisterE.Viratawhoasksustostop"thespitefuloppressionbeingwageagainst
himbythePresidentialCommissiononGoodGovernment(PCGG)undertheunarticulatedtheoryofguiltbyassociation."
PetitionerPlacidoL.Mapa,Jr.hasasimilarplea.HaskstheCourttoputanendtotheunreasonableoppressionand
harassmentwagedagainsthimbyPCGGforthesimplereasonthatheservedasaprofessionalunderthepreviousdispensation.
Tomeitisnotamaterialdifferencewhetherthecaseiscriminalprosecutionformurder,acaseforforfeitureofillgottenwealth,
aninvestigationtostriponeofaprofessionalotherlicense,ortheunloosingofagentsfromtheBureauInternalRevenue,
ImmigrationandDeportationCommissionmunicipalhealthofficers,firedepartments,etc.tohoundanharassapersonwhois
viewedwithdisfavorbycurrentgovernmentofficials.ThisCourtmuststoptheharassment.
PetitionersCesarE.A.VirataandPlacidoMapa,Jr.havebeencarelesslythrownintoaconspiracynetwith43otherpersonsfor
noapparentreasonexcepttheirhavingbeenrankingofficialswhonecessarilyhadtoparticipateinmanyofficialactsofthepast
Administration.
ThePCGGinthenameoftheRepublic,hascomeupwithgeneralandsweepingavermentsregardingillgottenwealthplunder,
extortion,blackmail,andvariouskindsofdiabolicalevilscommittedagainsttheFilipinopeople.
Ihavenoobjectiontotheprosecutionofthecasesagainstsomeofthepersonsnamedinthecomplaint.Whatdisturbsmisthe
recklessinclusionofthepetitionerswho,onthebasisothepleadings,cannotbyanystretchoftheimaginationbeconsidered

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recklessinclusionofthepetitionerswho,onthebasisothepleadings,cannotbyanystretchoftheimaginationbeconsidered
presumablyguiltywithsomeothers.Indenyingthepetition,theCourthasvalidatedadangerouspoliticalact,notothePresident
orherCabinet,butlesserfunctionarieswhohavefecklesslyfiledonlyonecaseagainst45personswhoseactsarediverseand
unconnectedandwhoseindividualdegreesofculpabilityorinnocencearekilometersapart.Tovalidateanactooppressive
harassmentagainstahighofficialofapastAdministrationsimplybecausetheprosecutingofficialsdetestthatadministrationruns
countertoeveryprincipleoffairplay,reconciliation,andsimplejusticewhichwearesworntouphold.
WhatthePCGGisdoingwhenitincludesthepetitionerswith43otherrespondentsinthiscaseistosetupamoresinister
versionoftheresidenciaduringearlySpanishcolonialtimes.Intheresidencia,theoutgoingofficialsofthecolonialadministration
weresubjectedtoajudicialexaminationandrequiredtoexplaintheiractswhilestillinpower.Nevermindiftheyareinnocent.
Theymustbejudiciallyexamined.
Inthiscase,theformerPrimeMinister,oneofthemostdecentanddedicatedpersonstoeverholdhighpublicoffice,ischarged
withallkindsoffanciedoffenseswithnostatementsoultimatefacts.Heisbeingaskedtodefendhimselfforallegedillegalactsof
theformerPresidentwithnoclearshowingofhowhehappenstoberesponsibleforthecommissionofthosegeneralized
offenses.Mr.Virataischargedwithoffensesrelatedtotheillegalaccumulationofvastwealthandplunder,withnottheslightest
indicationwherehiswealthisstashed,howheaccumulatedit,orhowheknowinglyhelpedothersinraidingthenationaltreasury.
Whatarethegeneralavermentsofillegalactsallegedlycommittedbythe45defendants,thetwopetitionersincluded.
Itischarged,amongothers,thatthedefendants:
(1)Actedsinglyorcollectivelyandinunlawfulconcertwithoneanotherinthemisappropriationandtheftofpublicfundsplunder
ofthenation'swealth,extortion,blackmail,bribeembezzlementandotheractsofcorruption,betrayalofpubtrustandbrazen
abuseofpower.
(2)Actedasdummies,nominees,oragentsofBenjamin(Kokoy)Romualdez,FerdinandE.Marcos,andImeldaR.MCOS.
(3)ConspiredwithformerPresidentMarcosintheIembarkinguponasystematicplantoaccumulateillgottenwealth.
(4)ConspiredinpreventingdisclosureandavoidingdiscoveryoftheunmitigatedplunderoftheNationalTreasury.They
conspiredinthedepositandinvestmentoffunds,securities,andotherassetsestimatedatbillionsofUSdollarsinvariousbanks,
financialinstitutions,trustorinvestmentcompaniesandwithpersonshereandabroad.

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Morespecifically,Mr.Virataischargedwith:
(1)ActivelycollaboratingwithBenjamin(Kokoy)Romualdez,JulietteGomezRomualdez,FerdinandE.MarcosImeldaR.Marcos
tojustlyenrichthemselvesbygivingMERALCOundueadvantagethroughthereductionoftheelectricfranchisetaxfrom5%to
2%ofgrossreceiptsandthetariffdonfueloilimportsbypublicutilitiesfrom20%to10%.
(2)ActivelycollaboratingwithothersinsecuringtheapprovalbyPresidentMarcosandhisCabinetofthe"ThreeProgramforthe
ExtensionofMERALCO'sServicestoWithinthe60KilometerRadiusofManila."
(3)CollaboratinginthemanipulationoftheformationofErectorsHoldings,Inc.soitcouldassumetheobligationsofErectors,
Inc.withPhilguaranteeintheamountofP527,387,440.71withinsufficientsecuritiesorcollaterals
(4)Actingasdummy,nominee,oragenttobe.usedasinstrumentinaccumulatingillgottenwealththroughgovernment
concessions,orders,orpoliciesprejudicialtotheRepublicofthePhilippines,orasanincorporator,director,ormember
corporationsheldorcontrolledbyFerdinandE.Marcos,ImeldaR.Marcos,BenjaminRomualdezandJulietteRomualdez.
Inotefromtherecordsthatthereductionofthefranchisefrom5%to3%ofgrossreceiptswasintendedforallelectriccompanies
andwaseffectedthroughP.D.551.TheDecreealsoreducedthetariffonfueloils.TheDecreewasapplicabletoallgranteesof
electricfranchisesandwasintendedtobenefitconsumers.ItsimplementationwaslefttotheBoardofEnergy.InPhilippine
ConsumerFoundation,Inc.vs.BoardofEnergyandMeralco(G.R.No.63018,October22,1985)thisCourtsustainedthevalidity
ofP.D.551.JusticeClaudioTeehankeehimself,whofiledadissent,agreedwiththeobjectivesoftheDecree.TheDecree
enactedbyMr.MarcosisinforceuptothepresentandIcannotseewhyMr.Viratashouldansweraharassmentsuitunderthe
circumstances.
TheexpansionprogramauthorizedforMERALCOwasintendedtobenefitconsumerswhohadtopayexhorbitantratestosmall
companiesservicingthem.Theprogramcontinuestothepresent.MERALCOliketheMWSSisconstantlyexpanding.Soisthe
programoftheNationalPowerCorporation,activelyendorsedbyPresidentAquino,totakeoverinefficientelectriccooperativesin
variouspartsofthecountry.TheexpansionprogramofMERALCOwasstudiedandendorsedbytheentireMarcosCabinet.To
holdMr.Viratasolelyresponsibleforanactwhichismanifestlynotcriminalordisadvantageoustothecommonpeopleisanact
ofharassment.ThepetitionerpointsoutthattodayNEDApresidedoverbythePresidenthasapprovedP880,200,000.00of
governmentfinancingfortheMERALCOexpansionprogram.Theexpansioncontinues.
TheallegedroleofMr.VirataintheformationofErectorsHoldings,Inc.(EHI)ispureinnuendo,inference,andspeculation.
Thereisnoallegationoffactsshowingthecharacterofhisinvolvementinorganizingthecompanyorthathehadknowledgeofor
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Thereisnoallegationoffactsshowingthecharacterofhisinvolvementinorganizingthecompanyorthathehadknowledgeofor
wasprivytotheRomualdezesintentionsinsettingitup.ThePCGGisplayingloosewithmereinferencesandconclusions,
substitutingsuspicionsandconjecturesforavermentsofalegalcausalrelationbetweenfactssetforthinthepleadings.(See
Alzua,etal.v.Johnson,21Phil.308[1912]).
AllegingthatMr.VirataactedasadummyforMr.MarcosorMr.Romualdezisaconclusion.Withoutastatementofultimatefacts
supportingit,thereisnocauseofaction.AnyoneamongthousandsofFilipinoswhomthePCGGdislikescouldbesingledoutby
itasadummyoragentofMr.Marcos.Toaccuseisonething.Tohavearationalbasisfortheaccusationisanother.
ThechargesagainstMr.Mapaareequallymurky.
Thesamesweepingallegationsarelevelledagainsthim,ohavingconspiredinthemisappropriationandtheftofpublicfunds,
plunderofthenation'swealth,extortion,blackmailbribery,embezzlement,andbrazenabuseofpower.
ThereisonlyoneallegationofanactionablewrongagainstMr.Mapa.Heallegedlyactedasadummyandallowedhimselftobe
usedasaninstrumentintheaccumulationofillgottenwealthortobeanincorporatorordirectorofcorporationcontrolledby
FerdinandE.Marcos,ImeldaR.Marcos,BejaminRomualdezandJulietteRomualdez.
ThecomplaintchargesthatMr.Mapawasadummybecausehewas"anincorporator,director,ormemberofcorporation
beneficiallyheldorcontrolledbydefendantsFerdinandMarcos,ImeldaMarcos,BenjaminRomualdezandJulietteRomualdez"in
order"toconcealandpreventrecoveryofassetsillegallyobtained."
Thecorporationsarenotnamed.Iamnotawareofanylawoprecedentwhichdeclaresitanoffenseoractionablewrongtoba
stockholderorevendirectorofacorporation,themajorityownershipofwhichhappenstobelongtoanallegedwrongdoeA
causeofactionmuststatetheultimatefactstoshowtheguiltyknowledgeorparticipationofadefendant.Tosayheisdummyis
notonlyaconclusionbutrequiresthedefendanttengageinpureandunmitigatedspeculation.Itisworsecausethecorporations
wherehismembershipissupposedtobthatofadummyarenotevenindicated.
IseefromtherecordsthatMr.Mapaisprosecutedforonlyonereasonhesharedhisprofessionalcompetenceineconomics
andfinancewithGovernment.Weallowadangerousprecedentwhenweallowtheharassmentoftwoindividualsbvalidating
theirinclusionwith43defendants,someofwhomaybeproperlyproceededagainst.
AsearlyasKwongSingv.CityofManila(41Phil.103[1920andDimayuga,etal.v.Fernandez(43Phil.304[10221),thisCourt
hasappliedtherulethatprohibitionshouldissuewhereitisnecessaryfortheorderlyadministrationofjusticeorpreventtheuse

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hasappliedtherulethatprohibitionshouldissuewhereitisnecessaryfortheorderlyadministrationofjusticeorpreventtheuse

ofthestrongarmofthelawinanoppressiveovindictivemanner,ortostopharassmentsthroughamultiplicityofactions.
InLimvs.Antonio,(125SCRA273[19831),theCourtruledthatdisgruntledcomplainantsagainstmembersoftheBarmaynot
beallowedtomakeuseofjudicialprocessasaninstrumentofretaliation.
Iagreewiththegeneralrulethatcriminalprosecutions,civilcases,oradministrativeactionsshouldnotordinarilybeblockedby
prohibition,injunction,orgrantsofmotionstodismiss.Thereare,however,exceptions.
AswestatedinthecaseofTeofistoGuingona,Jr.v.CityFiscalofManila,etal.(128SCRA577[1984]),exceptionsmayarisein
thefollowinginstances:
1.fortheorderlyadministrationofjustice
2.topreventtheuseofthestrongarmofthelawinanoppressiveandvindictivemanner
3.toavoidmultiplicityofactions
4.toaffordadequateprotectiontoconstitutionalrights
5.inpropercases,becausethestatuterelieduponisunconstitutionalorwasheldinvalid.(Primiciasv.MunicipalityofUrdaneta,
Pangasinan,93SCRA462,469470[1979]citingRamosv.Torres,25SCRA557[1968]andHernandezv.Albano,19SCRA
95,96[1967]).
InthefairlyrecentcaseofBrocka,etal.v.JuanPonceEnrile,etal.(G.R.Nos.6986365,December10,1990),thisCourt,
throughMr.JusticeMedialdeaexpandedthelistofexceptionsasfollows:
a.Toaffordadequateprotectiontotheconstitutionalrightsoftheaccused(Hernandezv.Albano,etal.,L19272,January25,
1967,19SCRA95)
b.Whennecessaryfortheorderlyadministrationofjusticeortoavoidoppressionormultiplicityofactions(Dimayuga,etal.v.
Fernandez,43Phil.304Hernandezv.Albano,supraFortunv.Labang,etal.L38383,May27,1981,104SCRA607)
c.Whenthereisaprejudicialquestionwhichissubjudice(DeLeonv.Mabanag,70Phil.202)
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d.Whentheactsoftheofficerarewithoutorinexcessofauthority(Planasv.Gil,67Phil.62)
e.Wheretheprosecutionisunderaninvalidlaw,ordinanceorregulation(Youngv.Rafferty,33Phil.556YuCongEngv.
Trinidad,47Phil.385,389)
fWhendoublejeopardyisclearlyapparent(Sangalangv.PeopleandAlvendia,109Phil.1140)
g.Wherethecourthasnojurisdictionovertheoffense(Lopezv.CityJudge,
L25795,October29,1966,18SCRA616)
h.Whereitisacaseofpersecutionratherthanprosecution(Rustiav.Ocampo,CAG.R.No.4760,March25,1960)
i.Wherethechargesaremanifestlyfalseandmotivatedbythelustforvengeance(Rectov.Castelo,18L.J.[1953],citedin
Ranoav.Alvendia,CAG.R.No.30720R,October8,1982CfGuingona,etal.v.CityFiscal,L60033,April4,1984,128SCRA
577)and
j.Whenthereisclearlynoprimafaciecaseagainsttheaccusedandamotiontoquashonthatgroundhasbeendenied(Salonga
v.Pano,etal.,L59524,February18,1985,134SCRA438).
7.PreliminaryinjunctionhasbeenissuedbytheSupremeCourttopreventthethreatenedunlawfularrestofpetitioners
(Rodriguezv.Castelo,L6374,August1,1953).(citedinRegalado,RemedialLawCompendium,p.188,1988,Ed.)"
Thereweremanywhodeploredtheuseoftheawesomepowersofgovernmentbythepastdispensationtoharass,intimidate,or
silencecriticsofitsacts.WenowhaveaGovernmentwhichtakesprideinproclaimingtothewholeworlditsadherenceto
principlesofjusticeandfairplay,itsdesireforreconciliation,anditshopesforagenuineandlastingdemocracy.
Unfortunately,whatitsaysandwhatitdoesarepolesapart,atleastinthesetwocases.Mr.VirataandMr.Mapaarenotcriticsof
thepresentAdministration.Theylivequiet,dignified,andusefullivesservingintheprivatesector.Icanseenootherreasonfor
theirvindictiveinclusioninthesweepingchargesofPCGGCaseNo.35excepttoharassandpersecutethem.Isubmitthatitis
thedutyoftheCourttostoptheseactions.
FORTHEFOREGOINGREASONS,IVOTEtoGRANTthepetitions.
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Bidin,J.,
FELICIANO,J.,concurringanddissenting:
IconcurintheconclusionsreachedbyMr.JusticeDavideinthevarioussegmentsofhisponencia,exceptthosesetoutinPartA
thereof.
InrespectoftheconclusionssetoutinPartAoftheponencia,Ifeelcompelledtodissent,onthebasisofthereasoningsetoutin
pp.49ofthedissentingopinionofMr.JusticeGutierrez.Iunderstandthatreasoningtobethatthe"GeneralAvermentsof
Defendants'IllegalActs"reproducedinpp.811ofMr.JusticeDavide'sponencia,reallyconstitutegeneralconclusions,someof
lawandsomeofmixedfactandlaw.Upontheotherhand,the"SpecificAvermentsofDefendants'lllegalActs"setoutinpp.11
13wherepetitionersVirataandMapaarespecificallynamed,aredefectiveforfailuretosetoutacauseorcausesofaction,in
thesensethattheavermentstheremade(totheextentthattheyarestatementsoffactandnotconclusionsoflaw),if
hypotheticallyadmittedtobetrue,wouldnonethelessnotjustifythetrialcourtinrenderingjudgmentagainstMessrs.Virataand
Mapa.
ForfailureoftheAmendedComplaintinCivilCaseNo.0035tostateavalidcauseofactionasagainstpetitionersVirataand
Mapa,Ivotetograntthepetitionsforcertiorariandprohibition.
#SeparateOpinions
GUTIERREZ,JR.,J.,dissenting:
Iamconstrainedtodissentfromthemajorityopinionwhichdismissesthepetitionsfiledinthesecases.
Thecomplaints,insofarastheyrefertoMessrs.VirataMapa,consistofmereinferencesandgeneralconclusionscannotgive
risetoanycauseofactionagainstthem.Merestatingthatthepetitionersengagedinvariouskindsofdiabolicalevilsagainstthe
Filipinopeoplewithnostatementsoultimatefactstosupportthesweepingandpolemicalchargecannotsubstituteforacauseof
action.Thepetitionershavebeencarelesslysweptintoanallencompassingnetthrownover45persons.Theirnotbelongingto
thegroupforwhomthenetshouldhavebeencastcallsforthegrantofthepetitions.
OnFebruary18,1985,aboutoneyearbeforetheEDSAupheaval,thiscourtemphaticallystated:
Infinitelymoreimportantthanconventionaladherencetogeneralrulesofcriminalprocedureisrespectforthecitizen'srightto
freenotonlyfromarbitraryarrestandpunishmentbutalsofrounwarrantedandvexatiousprosecution.Theintegrityofa
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democraticsocietyiscorruptedifapersoniscarelesslyincludedinthetrialaroundfortypersonswhenontheveryfaceofthe
recordnoevidencelinkinghimtotheallegedconspiracyexists.(Salongav.CruzPano134SCRA438,448[1985])
InSalongav.CruzPao,thepetitioner,nowPresidentoftheSenateofthePhilippines,askedustoprohibitandpreventthe
respondentsfromusingtheironarmofthelawtoharass,oppress,andpersecutehim,amemberofthethendemocratic
oppositioninthePhilippines.TheCourtgrantedhispetition.
AsimilarpleaisnowmadebyformerPrimeMinisterE.Viratawhoasksustostop"thespitefuloppressionbeingwageagainst
himbythePresidentialCommissiononGoodGovernment(PCGG)undertheunarticulatedtheoryofguiltbyassociation."
PetitionerPlacidoL.Mapa,Jr.hasasimilarplea.HaskstheCourttoputanendtotheunreasonableoppressionand
harassmentwagedagainsthimbyPCGGforthesimplereasonthatheservedasaprofessionalunderthepreviousdispensation.
Tomeitisnotamaterialdifferencewhetherthecaseiscriminalprosecutionformurder,acaseforforfeitureofillgottenwealth,
aninvestigationtostriponeofaprofessionalotherlicense,ortheunloosingofagentsfromtheBureauInternalRevenue,
ImmigrationandDeportationCommissionmunicipalhealthofficers,firedepartments,etc.tohoundanharassapersonwhois
viewedwithdisfavorbycurrentgovernmentofficials.ThisCourtmuststoptheharassment.
PetitionersCesarE.A.VirataandPlacidoMapa,Jr.havebeencarelesslythrownintoaconspiracynetwith43otherpersonsfor
noapparentreasonexcepttheirhavingbeenrankingofficialswhonecessarilyhadtoparticipateinmanyofficialactsofthepast
Administration.
ThePCGGinthenameoftheRepublic,hascomeupwithgeneralandsweepingavermentsregardingillgottenwealthplunder,
extortion,blackmail,andvariouskindsofdiabolicalevilscommittedagainsttheFilipinopeople.
Ihavenoobjectiontotheprosecutionofthecasesagainstsomeofthepersonsnamedinthecomplaint.Whatdisturbsmisthe
recklessinclusionofthepetitionerswho,onthebasisothepleadings,cannotbyanystretchoftheimaginationbeconsidered
presumablyguiltywithsomeothers.Indenyingthepetition,theCourthasvalidatedadangerouspoliticalact,notothePresident
orherCabinet,butlesserfunctionarieswhohavefecklesslyfiledonlyonecaseagainst45personswhoseactsarediverseand
unconnectedandwhoseindividualdegreesofculpabilityorinnocencearekilometersapart.Tovalidateanactooppressive
harassmentagainstahighofficialofapastAdministrationsimplybecausetheprosecutingofficialsdetestthatadministrationruns
countertoeveryprincipleoffairplay,reconciliation,andsimplejusticewhichwearesworntouphold.
WhatthePCGGisdoingwhenitincludesthepetitionerswith43otherrespondentsinthiscaseistosetupamoresinister
versionoftheresidenciaduringearlySpanishcolonialtimes.Intheresidencia,theoutgoingofficialsofthecolonialadministration
weresubjectedtoajudicialexaminationandrequiredtoexplaintheiractswhilestillinpower.Nevermindiftheyareinnocent.
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weresubjectedtoajudicialexaminationandrequiredtoexplaintheiractswhilestillinpower.Nevermindiftheyareinnocent.
Theymustbejudiciallyexamined.
Inthiscase,theformerPrimeMinister,oneofthemostdecentanddedicatedpersonstoeverholdhighpublicoffice,ischarged
withallkindsoffanciedoffenseswithnostatementsoultimatefacts.Heisbeingaskedtodefendhimselfforallegedillegalactsof
theformerPresidentwithnoclearshowingofhowhehappenstoberesponsibleforthecommissionofthosegeneralized
offenses.Mr.Virataischargedwithoffensesrelatedtotheillegalaccumulationofvastwealthandplunder,withnottheslightest
indicationwherehiswealthisstashed,howheaccumulatedit,orhowheknowinglyhelpedothersinraidingthenationaltreasury.
Whatarethegeneralavermentsofillegalactsallegedlycommittedbythe45defendants,thetwopetitionersincluded.
Itischarged,amongothers,thatthedefendants:
(1)Actedsinglyorcollectivelyandinunlawfulconcertwithoneanotherinthemisappropriationandtheftofpublicfundsplunder
ofthenation'swealth,extortion,blackmail,bribeembezzlementandotheractsofcorruption,betrayalofpubtrustandbrazen
abuseofpower.
(2)Actedasdummies,nominees,oragentsofBenjamin(Kokoy)Romualdez,FerdinandE.Marcos,andImeldaR.MCOS.
(3)ConspiredwithformerPresidentMarcosintheIembarkinguponasystematicplantoaccumulateillgottenwealth.
(4)ConspiredinpreventingdisclosureandavoidingdiscoveryoftheunmitigatedplunderoftheNationalTreasury.They
conspiredinthedepositandinvestmentoffunds,securities,andotherassetsestimatedatbillionsofUSdollarsinvariousbanks,
financialinstitutions,trustorinvestmentcompaniesandwithpersonshereandabroad.
Morespecifically,Mr.Virataischargedwith:
(1)ActivelycollaboratingwithBenjamin(Kokoy)Romualdez,JulietteGomezRomualdez,FerdinandE.MarcosImeldaR.Marcos
tojustlyenrichthemselvesbygivingMERALCOundueadvantagethroughthereductionoftheelectricfranchisetaxfrom5%to
2%ofgrossreceiptsandthetariffdonfueloilimportsbypublicutilitiesfrom20%to10%.
(2)ActivelycollaboratingwithothersinsecuringtheapprovalbyPresidentMarcosandhisCabinetofthe"ThreeProgramforthe
ExtensionofMERALCO'sServicestoWithinthe60KilometerRadiusofManila."
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(3)CollaboratinginthemanipulationoftheformationofErectorsHoldings,Inc.soitcouldassumetheobligationsofErectors,
Inc.withPhilguaranteeintheamountofP527,387,440.71withinsufficientsecuritiesorcollaterals
(4)Actingasdummy,nominee,oragenttobe.usedasinstrumentinaccumulatingillgottenwealththroughgovernment
concessions,orders,orpoliciesprejudicialtotheRepublicofthePhilippines,orasanincorporator,director,ormember
corporationsheldorcontrolledbyFerdinandE.Marcos,ImeldaR.Marcos,BenjaminRomualdezandJulietteRomualdez.
Inotefromtherecordsthatthereductionofthefranchisefrom5%to3%ofgrossreceiptswasintendedforallelectriccompanies
andwaseffectedthroughP.D.551.TheDecreealsoreducedthetariffonfueloils.TheDecreewasapplicabletoallgranteesof
electricfranchisesandwasintendedtobenefitconsumers.ItsimplementationwaslefttotheBoardofEnergy.InPhilippine
ConsumerFoundation,Inc.vs.BoardofEnergyandMeralco(G.R.No.63018,October22,1985)thisCourtsustainedthevalidity
ofP.D.551.JusticeClaudioTeehankeehimself,whofiledadissent,agreedwiththeobjectivesoftheDecree.TheDecree
enactedbyMr.MarcosisinforceuptothepresentandIcannotseewhyMr.Viratashouldansweraharassmentsuitunderthe
circumstances.
TheexpansionprogramauthorizedforMERALCOwasintendedtobenefitconsumerswhohadtopayexhorbitantratestosmall
companiesservicingthem.Theprogramcontinuestothepresent.MERALCOliketheMWSSisconstantlyexpanding.Soisthe
programoftheNationalPowerCorporation,activelyendorsedbyPresidentAquino,totakeoverinefficientelectriccooperativesin
variouspartsofthecountry.TheexpansionprogramofMERALCOwasstudiedandendorsedbytheentireMarcosCabinet.To
holdMr.Viratasolelyresponsibleforanactwhichismanifestlynotcriminalordisadvantageoustothecommonpeopleisanact
ofharassment.ThepetitionerpointsoutthattodayNEDApresidedoverbythePresidenthasapprovedP880,200,000.00of
governmentfinancingfortheMERALCOexpansionprogram.Theexpansioncontinues.
TheallegedroleofMr.VirataintheformationofErectorsHoldings,Inc.(EHI)ispureinnuendo,inference,andspeculation.
Thereisnoallegationoffactsshowingthecharacterofhisinvolvementinorganizingthecompanyorthathehadknowledgeofor
wasprivytotheRomualdezesintentionsinsettingitup.ThePCGGisplayingloosewithmereinferencesandconclusions,
substitutingsuspicionsandconjecturesforavermentsofalegalcausalrelationbetweenfactssetforthinthepleadings.(See
Alzua,etal.v.Johnson,21Phil.308[1912]).
AllegingthatMr.VirataactedasadummyforMr.MarcosorMr.Romualdezisaconclusion.Withoutastatementofultimatefacts
supportingit,thereisnocauseofaction.AnyoneamongthousandsofFilipinoswhomthePCGGdislikescouldbesingledoutby
itasadummyoragentofMr.Marcos.Toaccuseisonething.Tohavearationalbasisfortheaccusationisanother.
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ThechargesagainstMr.Mapaareequallymurky.
Thesamesweepingallegationsarelevelledagainsthim,ohavingconspiredinthemisappropriationandtheftofpublicfunds,
plunderofthenation'swealth,extortion,blackmailbribery,embezzlement,andbrazenabuseofpower.
ThereisonlyoneallegationofanactionablewrongagainstMr.Mapa.Heallegedlyactedasadummyandallowedhimselftobe
usedasaninstrumentintheaccumulationofillgottenwealthortobeanincorporatorordirectorofcorporationcontrolledby
FerdinandE.Marcos,ImeldaR.Marcos,BejaminRomualdezandJulietteRomualdez.
ThecomplaintchargesthatMr.Mapawasadummybecausehewas"anincorporator,director,ormemberofcorporation
beneficiallyheldorcontrolledbydefendantsFerdinandMarcos,ImeldaMarcos,BenjaminRomualdezandJulietteRomualdez"in
order"toconcealandpreventrecoveryofassetsillegallyobtained."
Thecorporationsarenotnamed.Iamnotawareofanylawoprecedentwhichdeclaresitanoffenseoractionablewrongtoba
stockholderorevendirectorofacorporation,themajorityownershipofwhichhappenstobelongtoanallegedwrongdoeA
causeofactionmuststatetheultimatefactstoshowtheguiltyknowledgeorparticipationofadefendant.Tosayheisdummyis
notonlyaconclusionbutrequiresthedefendanttengageinpureandunmitigatedspeculation.Itisworsecausethecorporations
wherehismembershipissupposedtobthatofadummyarenotevenindicated.
IseefromtherecordsthatMr.Mapaisprosecutedforonlyonereasonhesharedhisprofessionalcompetenceineconomics
andfinancewithGovernment.Weallowadangerousprecedentwhenweallowtheharassmentoftwoindividualsbvalidating
theirinclusionwith43defendants,someofwhomaybeproperlyproceededagainst.
AsearlyasKwongSingv.CityofManila(41Phil.103[1920andDimayuga,etal.v.Fernandez(43Phil.304[10221),thisCourt
hasappliedtherulethatprohibitionshouldissuewhereitisnecessaryfortheorderlyadministrationofjusticeorpreventtheuse
ofthestrongarmofthelawinanoppressiveovindictivemanner,ortostopharassmentsthroughamultiplicityofactions.
InLimvs.Antonio,(125SCRA273[19831),theCourtruledthatdisgruntledcomplainantsagainstmembersoftheBarmaynot
beallowedtomakeuseofjudicialprocessasaninstrumentofretaliation.
Iagreewiththegeneralrulethatcriminalprosecutions,civilcases,oradministrativeactionsshouldnotordinarilybeblockedby
prohibition,injunction,orgrantsofmotionstodismiss.Thereare,however,exceptions.
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AswestatedinthecaseofTeofistoGuingona,Jr.v.CityFiscalofManila,etal.(128SCRA577[1984]),exceptionsmayarisein
thefollowinginstances:
1.fortheorderlyadministrationofjustice
2.topreventtheuseofthestrongarmofthelawinanoppressiveandvindictivemanner
3.toavoidmultiplicityofactions
4.toaffordadequateprotectiontoconstitutionalrights
5.inpropercases,becausethestatuterelieduponisunconstitutionalorwasheldinvalid.(Primiciasv.MunicipalityofUrdaneta,
Pangasinan,93SCRA462,469470[1979]citingRamosv.Torres,25SCRA557[1968]andHernandezv.Albano,19SCRA
95,96[1967]).
InthefairlyrecentcaseofBrocka,etal.v.JuanPonceEnrile,etal.(G.R.Nos.6986365,December10,1990),thisCourt,
throughMr.JusticeMedialdeaexpandedthelistofexceptionsasfollows:
a.Toaffordadequateprotectiontotheconstitutionalrightsoftheaccused(Hernandezv.Albano,etal.,L19272,January25,
1967,19SCRA95)
b.Whennecessaryfortheorderlyadministrationofjusticeortoavoidoppressionormultiplicityofactions(Dimayuga,etal.v.
Fernandez,43Phil.304Hernandezv.Albano,supraFortunv.Labang,etal.L38383,May27,1981,104SCRA607)
c.Whenthereisaprejudicialquestionwhichissubjudice(DeLeonv.Mabanag,70Phil.202)
d.Whentheactsoftheofficerarewithoutorinexcessofauthority(Planasv.Gil,67Phil.62)
e.Wheretheprosecutionisunderaninvalidlaw,ordinanceorregulation(Youngv.Rafferty,33Phil.556YuCongEngv.
Trinidad,47Phil.385,389)
fWhendoublejeopardyisclearlyapparent(Sangalangv.PeopleandAlvendia,109Phil.1140)
g.Wherethecourthasnojurisdictionovertheoffense(Lopezv.CityJudge,
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g.Wherethecourthasnojurisdictionovertheoffense(Lopezv.CityJudge,
L25795,October29,1966,18SCRA616)
h.Whereitisacaseofpersecutionratherthanprosecution(Rustiav.Ocampo,CAG.R.No.4760,March25,1960)
i.Wherethechargesaremanifestlyfalseandmotivatedbythelustforvengeance(Rectov.Castelo,18L.J.[1953],citedin
Ranoav.Alvendia,CAG.R.No.30720R,October8,1982CfGuingona,etal.v.CityFiscal,L60033,April4,1984,128SCRA
577)and
j.Whenthereisclearlynoprimafaciecaseagainsttheaccusedandamotiontoquashonthatgroundhasbeendenied(Salonga
v.Pano,etal.,L59524,February18,1985,134SCRA438).
7.PreliminaryinjunctionhasbeenissuedbytheSupremeCourttopreventthethreatenedunlawfularrestofpetitioners
(Rodriguezv.Castelo,L6374,August1,1953).(citedinRegalado,RemedialLawCompendium,p.188,1988,Ed.)"
Thereweremanywhodeploredtheuseoftheawesomepowersofgovernmentbythepastdispensationtoharass,intimidate,or
silencecriticsofitsacts.WenowhaveaGovernmentwhichtakesprideinproclaimingtothewholeworlditsadherenceto
principlesofjusticeandfairplay,itsdesireforreconciliation,anditshopesforagenuineandlastingdemocracy.
Unfortunately,whatitsaysandwhatitdoesarepolesapart,atleastinthesetwocases.Mr.VirataandMr.Mapaarenotcriticsof
thepresentAdministration.Theylivequiet,dignified,andusefullivesservingintheprivatesector.Icanseenootherreasonfor
theirvindictiveinclusioninthesweepingchargesofPCGGCaseNo.35excepttoharassandpersecutethem.Isubmitthatitis
thedutyoftheCourttostoptheseactions.
FORTHEFOREGOINGREASONS,IVOTEtoGRANTthepetitions.
Bidin,J.,
FELICIANO,J.,concurringanddissenting:
IconcurintheconclusionsreachedbyMr.JusticeDavideinthevarioussegmentsofhisponencia,exceptthosesetoutinPartA
thereof.
InrespectoftheconclusionssetoutinPartAoftheponencia,Ifeelcompelledtodissent,onthebasisofthereasoningsetoutin
pp.49ofthedissentingopinionofMr.JusticeGutierrez.Iunderstandthatreasoningtobethatthe"GeneralAvermentsof
Defendants'IllegalActs"reproducedinpp.811ofMr.JusticeDavide'sponencia,reallyconstitutegeneralconclusions,someof

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Defendants'IllegalActs"reproducedinpp.811ofMr.JusticeDavide'sponencia,reallyconstitutegeneralconclusions,someof
lawandsomeofmixedfactandlaw.Upontheotherhand,the"SpecificAvermentsofDefendants'lllegalActs"setoutinpp.11
13wherepetitionersVirataandMapaarespecificallynamed,aredefectiveforfailuretosetoutacauseorcausesofaction,in
thesensethattheavermentstheremade(totheextentthattheyarestatementsoffactandnotconclusionsoflaw),if
hypotheticallyadmittedtobetrue,wouldnonethelessnotjustifythetrialcourtinrenderingjudgmentagainstMessrs.Virataand
Mapa.
ForfailureoftheAmendedComplaintinCivilCaseNo.0035tostateavalidcauseofactionasagainstpetitionersVirataand
Mapa,Ivotetograntthepetitionsforcertiorariandprohibition.
#Footnotes
1Forreconveyance,reversion,accounting,restitutionanddamages.Fortyfour(44)otherswereoriginallyimpleadedasco
defendants,namely:JulietteGomezRomualdez,FerdinandE.Marcos,ImeldaR.Marcos,ConchitaRomualdezYap,EdonYap,
FranciscoTantuico,DeliaTantuico,EduardoAbello,CleofeVillarVerzola,MarioCamacho,CarlosJ.Valdez,CesarZalamea,
JovencioSinco,SenenGabaldon,MamertoNepomuceno,AntonioOzaeta,CesarVirata,IsidroRodriguez,JuanitaRemulla,
DomingoIngco,JoseSandejas,BerBernabe,JoseCruz,Jr.,JosefielCruz,JoseDans,Jr.,PedroDumol,RicardoGaling,
LeonardoGamboa,FranciscoGatmaitan,JoseHernandez,VirgilioLeynes,PlacidoMapa,Jr.,VicenteMills,Jr.,Edilberto
Narciso,Jr.,EvelynNicasio,LydiaNicasio,ZenaidaOcampo,RosarioOlivares,JosephineRamirez,EdgardoRegala,Abelardo
Termulo,MauroYumang,JosefaCruzandMasaruKobori.IntheexpandedSecondAmendedComplaint,thefollowingadditional
partieswereimpleadedascodefendants,namely:JoseF.S.Bengzon,Jr.,JoseVicenteJimenez,AmandoFaustino,Jr.,
LeonardoCruz,EugeniaMunoz,RexDrilonII,JoseManteconandKurtBachmann,Jr
2Rollo,Viratacase,1415Id.,Mapacase,1314.
3Annex"F"ofPetitionsinbothcases.
4Annex"A"ofPetitionsinbothcases.
5Enumeratedinfootnoteno.1,supra.
6Rollo,Viratacase,119120Id.,Mapacase,100101.
7Annex"D"ofPetitioninbothcases.
8Annex"E"ofPetitionsinbothcases.

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G.R.No.86926

9Annex"F"ofPetitionsinbothcases.
10Par.7,undertheheadingParties,ofSecondAmendedComplaint,asexpanded,510
11Rollo.Viratacase,217223Id.,Mapacase,202208.
12Rollo,Viratacase,246251Id.,Mapacase,230235.
13Id.,Viratacase,251253Id.,Mapacase,235237.
14Section15ofArticleXIonAccountabilityofPublicOfficespecificallyprovides:"TherightoftheStatetorecoverproperties
unlawfullyacquiredbypublicofficialsoremployees,fromthemfromtheirnomineesortransferees,shallnotbebarredby
prescription,laches,orestoppel."
15BataanShipyard&EngineeringCo.,Inc.vs.PCGG,etal.,150SCRA181,207.
16MaaoSugarCentralCo.vs.Barrios,79Phil.666.
17Paminsavs.Costales,28Phil.487.
1825SCRA529.
19CitingRepublicBankvs.Cuaderno,L22399,30March1967,126Phil.1076.
20Amaro,etal.vs.Sumanguit,5SCRA707.
2139SCRA473,479.
22Sec.26,ArticleXVIII.
23Supra.,footnote15.
24159SCRA566(1988).
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25164SCRA226.
26G.R.Nos.9231920,2October1990,190SCRA226.
27G.R.No.94595,26February1991
28MinisterJovitoR.Salonga,asChairman,Mr.RamonDiaz,Mr.PedroL.Yap,Mr.RaulDazaandMs.MaryConcepcion
BautistaCommissioners.
29Peraltavs.CommissiononElections,82SCRA30Parades,etal.vs.ExecutiveSecretary,128SCRA6.
30YuCongEngvs.Trinidad,47Phil.385.
TheLawphilProjectArellanoLawFoundation

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