Republic of the Philippines

Supreme Court
Baguio City

EN BANC


LAWYERS AGAINST MONOPOLY
AND POERTY !LAMP"#
$ep$esente% b& its Ch'i$('n
'n% counsel# CE)ERINO PAD*A#
Me(be$s# ALBERTO ABELEDA#
+R,# ELEA-AR ANGELES#
GREGELY )*LTON ACOSTA#
ICTOR AECILLA# GALILEO
BRION# ANATALIA
B*ENAENT*RA# E)REN
CARAG# PEDRO CASTILLO#
NAPOLEON CORONADO#
ROMEO EC.A*-# AL)REDO
DE G*-MAN# ROGELIO
/ARAGDAG# +R,# MARIA L*-
AR-AGA0MENDO-A# LEO L*IS
MENDO-A# ANTONIO P,
PAREDES# A1*ILINO PIMENTEL
III# MARIO REYES# EMMAN*EL
SANTOS# TERESITA SANTOS#
R*DEGELIO TACORDA#
SECRETARY GEN, ROLANDO

G,R, No, 234567

Present:

CORONA, C.J.,
CARPIO,
VELASCO, JR.,
LEONARDODE CAS!RO,
BRION,
PERAL!A,
BERSA"IN,
DEL CAS!ILLO,
ABAD,
AR-AGA# Bo'$% of Consult'nts#
+*STICE ABRA.AM
SARMIENTO# SEN, A1*ILINO
PIMENTEL# +R,# 'n%
BARTOLOME )ERNANDE-# +R,#
Petitioners,



#ersus $




T.E SECRETARY O) B*DGET
AND MANAGEMENT# T.E
TREAS*RER O) T.E
P.ILIPPINES# T.E COMMISSION
ON A*DIT# 'n% T.E PRESIDENT
O) T.E SENATE 'n% the
SPEA/ER O) T.E .O*SE O)
REPRESENTATIES in
$ep$esent'tion of the Me(be$s
of the Con8$ess#
Respon%ents.

VILLARA"A, JR.,
PERE&,
"ENDO&A,
SERENO,
RE'ES,
PERLASBERNABE, JJ.

























Promu(gate%:

Apri( )*, )+,)
- -

D E C I S I O N


MENDO-A# J,9

.or /onsi%eration o0 t1e Court is an origina( a/tion 0or certiorari assai(ing
t1e /onstitutiona(ity an% (ega(ity o0 t1e imp(ementation o0 t1e Priority
De#e(opment Assistan/e .un% (PDAF) as pro#i%e% 0or in Repu2(i/ A/t (R.A.) 3)+4
or t1e 5enera( Appropriations A/t 0or )++* (GAA of 2004). Petitioner La6yers
Against "onopo(y an% Po#erty (LAMP), a group o0 (a6yers 61o 1a#e 2an%e%
toget1er 6it1 a mission o0 %ismant(ing a(( 0orms o0 po(iti/a(, e/onomi/ or so/ia(
monopo(y in t1e /ountry,
7,8
a(so soug1t t1e issuan/e o0 a 6rit o0 pre(iminary
in9un/tion or temporary restraining or%er to en9oin respon%ent Se/retary o0 t1e
Department o0 Bu%get an% "anagement (DBM) 0rom ma:ing, an%, t1erea0ter,
re(easing 2u%getary a((o/ations to in%i#i%ua( mem2ers o0 Congress as ;por: 2arre(<
0un%s out o0 PDA.. LA"P (i:e6ise aime% to stop t1e Nationa( !reasurer an% t1e
Commission on Au%it (COA) 0rom en0or/ing t1e =uestione% pro#ision.

On Septem2er ,*, )++*, t1e Court re=uire% respon%ents, in/(u%ing t1e
Presi%ent o0 t1e Senate an% t1e Spea:er o0 t1e >ouse o0 Representati#es, to
/omment on t1e petition. On Apri( ?, )++@, petitioner 0i(e% a Rep(y t1ereto.
7)8
On Apri( )4, )++@, 2ot1 parties 6ere re=uire% to su2mit t1eir respe/ti#e
memoran%a.

!1e 5AA o0 )++* /ontains t1e 0o((o6ing pro#ision su29e/t o0 t1is petition:

PRIORITY DEVELOPMENT ASSISTANCE FUND

For fund requirements of priorit de!e"opment pro#r$ms $nd
pro%e&ts' $s indi&$ted (ereunder ) *'+,-'...'.../..

0 1 1 1 1

Spe&i$" Pro!ision

2/ Use $nd Re"e$se of t(e Fund/ T(e $mount (erein
$ppropri$ted s($"" 3e used to fund priorit pro#r$ms $nd pro%e&ts or to
fund t(e required &ounterp$rt for forei#n4$ssisted pro#r$ms $nd pro%e&ts5
PROVIDED' T($t su&( $mount s($"" 3e re"e$sed dire&t" to t(e
imp"ementin# $#en& or Lo&$" 6o!ernment Unit
&on&erned5 PROVIDED' FURT7ER' T($t t(e $""o&$tions $ut(ori8ed
(erein m$ 3e re$"i#ned to $n e1pense &"$ss' if deemed ne&ess$r5
PROVIDED FURT7ERMORE' T($t $ m$1imum of ten per&ent 92.:; of
t(e $ut(ori8ed $""o&$tions 3 distri&t m$ 3e used for pro&urement of ri&e
$nd ot(er 3$si& &ommodities <(i&( s($"" 3e pur&($sed from t(e N$tion$"
Food Aut(orit/



Petitioners Position

A//or%ing to LA"P, t1e a2o#e pro#ision is si(ent an%, t1ere0ore, pro1i2its
an automati/ or %ire/t a((o/ation o0 (ump sums to in%i#i%ua( senators an%
/ongressmen 0or t1e 0un%ing o0 pro9e/ts. It %oes not empo6er in%i#i%ua( "em2ers
o0 Congress to propose, se(e/t an% i%enti0y programs an% pro9e/ts to 2e 0un%e% out
o0 PDA.. ;In pre#ious 5AAs, sai% a((o/ation an% i%enti0i/ation o0 pro9e/ts 6ere
t1e main 0eatures o0 t1e Apor: 2arre(B system te/1ni/a((y :no6n as Country6i%e
De#e(opment .un% CCD.D. Not1ing o0 t1e sort is no6 seen in t1e present (a6
CR.A. No. 3)+4 o0 C' )++*D.
7E8
In its memoran%um, LA"P insists t1at ;7t81e
si(en/e in t1e (a6 o0 %ire/t or e#en in%ire/t parti/ipation 2y mem2ers o0 Congress
2etrays a %e(i2erate intent on t1e part o0 t1e E-e/uti#e an% t1e Congress to s/rap
an% %o a6ay 6it1 t1e Apor: 2arre(B system.<
7*8
In ot1er 6or%s, ;7t81e omission o0
t1e PDA. pro#ision to spe/i0y sums as Aa((o/ationsB to in%i#i%ua( "em2ers o0
Congress is a Acasus omissus signi0ying an omission intentiona((y ma%e 2y
Congress t1at t1is Court is 0or2i%%en to supp(y.<
7@8
>en/e, LA"P is o0 t1e
/on/(usion t1at ;t1e por: 2arre( 1as 2e/ome (ega((y %e0un/t un%er t1e present state
o0 5AA )++*.<
748


LA"P 0urt1er %e/ries t1e suppose% 0(a6s in t1e imp(ementation o0 t1e
pro#ision, name(y: ,D t1e DB" i((ega((y ma%e an% %ire/t(y re(ease% 2u%getary
a((o/ations out o0 PDA. in 0a#or o0 in%i#i%ua( "em2ers o0 CongressF an% )D t1e
(atter %o not possess t1e po6er to propose, se(e/t an% i%enti0y 61i/1 pro9e/ts are to
2e a/tua((y 0un%e% 2y PDA..

.or LA"P, t1is situation runs a0ou( against t1e prin/ip(e o0 separation o0
po6ers 2e/ause in re/ei#ing an%, t1erea0ter, spen%ing 0un%s 0or t1eir /1osen
pro9e/ts, t1e "em2ers o0 Congress in e00e/t intru%e into an e-e/uti#e 0un/tion. In
ot1er 6or%s, t1ey /annot %ire/t(y spen% t1e 0un%s, t1e appropriation 0or 61i/1 6as
ma%e 2y t1em. In t1eir in%i#i%ua( /apa/ities, t1e "em2ers o0 Congress /annot
;#irtua((y te(( or %i/tate upon t1e E-e/uti#e Department 1o6 to spen% ta-payerBs
money.
7?8
.urt1er, t1e aut1ority to propose an% se(e/t pro9e/ts %oes not pertain to
(egis(ation. ;It is, in 0a/t, a non(egis(ati#e 0un/tion %e#oi% o0 /onstitutiona(
san/tion,<
7G8
an%, t1ere0ore, impermissi2(e an% must 2e /onsi%ere% not1ing (ess t1an
ma(0easan/e. !1e proposa( an% i%enti0i/ation o0 t1e pro9e/ts %o not in#o(#e t1e
ma:ing o0 (a6s or t1e repea( an% amen%ment t1ereo0, 61i/1 is t1e on(y 0un/tion
gi#en to t1e Congress 2y t1e Constitution. Veri(y, t1e po6er o0 appropriation
grante% to Congress as a /o((egia( 2o%y, ;%oes not in/(u%e t1e po6er o0 t1e
"em2ers t1ereo0 to in%i#i%ua((y propose, se(e/t an% i%enti0y 61i/1 pro9e/ts are to
2e a/tua((y imp(emente% an% 0un%e% a 0un/tion 61i/1 essentia((y an% e-/(usi#e(y
pertains to t1e E-e/uti#e Department.<
738
By a((o6ing t1e "em2ers o0 Congress to
re/ei#e %ire/t a((otment 0rom t1e 0un%, to propose an% i%enti0y pro9e/ts to 2e
0un%e% an% to per0orm t1e a/tua( spen%ing o0 t1e 0un%, t1e imp(ementation o0 t1e
PDA. pro#ision 2e/omes (ega((y in0irm an% /onstitutiona((y repugnant.

Respondents Position

.or t1eir part, t1e respon%ents
7,+8
/onten% t1at t1e petition misera2(y (a/:s
(ega( an% 0a/tua( groun%s. A(t1oug1 t1ey a%mit t1at PDA. tra/e% its roots to CD.,
7,,8
t1ey argue t1at t1e 0ormer s1ou(% not 2e e=uate% 6it1 ;por: 2arre(,< 61i/1 1as
gaine% a %erogatory meaning re0erring ;to go#ernment pro9e/ts a00or%ing po(iti/a(
opportunism.<
7,)8
In t1e petition, no proo0 o0 t1is 6as o00ere%. It /annot 2e
gainsai% t1en t1at t1e petition /annot stan% on in/on/(usi#e me%ia reports,
assumptions an% /on9e/tures a(one. Hit1out pro2ati#e #a(ue, me%ia reports /ite%
2y t1e petitioner %eser#e s/ant /onsi%eration espe/ia((y t1e a//usation t1at /orrupt
(egis(ators 1a#e a((ege%(y propose% /uts or s(as1es 0rom t1eir por: 2arre(. >en/e,
t1e Court s1ou(% %e/(ine t1e petitionerBs p(ea to ta:e 9u%i/ia( noti/e o0 t1e suppose%
ini=uity o0 PDA. 2e/ause t1ere is no /on/rete proo0 t1at PDA., in t1e guise o0
;por: 2arre(,< is a sour/e o0 ;%irty money< 0or uns/rupu(ous (a6ma:ers an% ot1er
o00i/ia(s 61o ten% to misuse t1eir a((o/ations. !1ese ;0a/ts< 1a#e no attri2utes o0
su00i/ient notoriety or genera( re/ognition a//epte% 2y t1e pu2(i/ 6it1out
=ua(i0i/ation, to 2e su29e/te% to 9u%i/ia( noti/e. !1is app(ies, a fortiori, to t1e
/(aim t1at "em2ers o0 Congress are 2ene0i/iaries o0 /ommissions C:i/:2a/:sD
ta:en out o0 t1e PDA. a((o/ations an% re(eases an% pre0erre% 2y 0a#ore%
/ontra/tors representing 0rom )+I to @+I o0 t1e appro#e% 2u%get 0or a parti/u(ar
pro9e/t.
7,E8
Su00i/e it to say, t1e per/eptions o0 LA"P on t1e imp(ementation o0
PDA. must not 2e 2ase% on mere spe/u(ations /ir/u(ate% in t1e ne6s me%ia
prea/1ing t1e e#i(s o0 por: 2arre(. .ai(ing to present e#en an iota o0 proo0 t1at t1e
DB" Se/retary 1as 2een re(easing (ump sums 0rom PDA. %ire/t(y or in%ire/t(y to
in%i#i%ua( "em2ers o0 Congress, t1e petition 0a((s s1ort o0 its /ause.

Li:e6ise a%mitting t1at CD. an% PDA. are ;appropriations 0or
su2stantia((y simi(ar, i0 not t1e same, 2ene0i/ia( purposes,<
7,*8
t1e respon%ents
in#o:eP!i"co#sa $. %#ri&ue',
7,@8
61ere CD. 6as %es/ri2e% as an imaginati#e an%
inno#ati#e pro/ess or me/1anism o0 imp(ementing priority programsJpro9e/ts
spe/i0ie% in t1e (a6. In P!i"co#sa, t1e Court up1e(% t1e aut1ority o0 in%i#i%ua(
"em2ers o0 Congress to propose an% i%enti0y priority pro9e/ts 2e/ause t1is 6as
mere(y re/ommen%atory in nature. In sai% /ase, it 6as a(so re/ogniKe% t1at
in%i#i%ua( mem2ers o0 Congress 0ar more t1an t1e Presi%ent an% t1eir
/ongressiona( /o((eagues 6ere (i:e(y to 2e :no6(e%gea2(e a2out t1e nee%s o0 t1eir
respe/ti#e /onstituents an% t1e priority to 2e gi#en ea/1 pro9e/t.

The Issues

!1e respon%ents urge t1e Court to %ismiss t1e petition 0or its 0ai(ure to
esta2(is1 0a/tua( an% (ega( 2asis to support its /(aims, t1ere2y (a/:ing an essentia(
re=uisite o0 9u%i/ia( re#ie6Lan a/tua( /ase or /ontro#ersy.

The Courts Ruling

!o t1e Court, t1e /ase 2oi(s %o6n to t1ese issues: ,D 61et1er or not t1e
man%atory re=uisites 0or t1e e-er/ise o0 9u%i/ia( re#ie6 are met in t1is /aseF an% )D
61et1er or not t1e imp(ementation o0 PDA. 2y t1e "em2ers o0 Congress
is un/onstitutiona( an% i((ega(.

Li:e a(most a(( po6ers /on0erre% 2y t1e Constitution, t1e po6er o0 9u%i/ia(
re#ie6 is su29e/t to (imitations, to 6it: C,D t1ere must 2e an a/tua( /ase or
/ontro#ersy /a((ing 0or t1e e-er/ise o0 9u%i/ia( po6erF C)D t1e person /1a((enging
t1e a/t must 1a#e t1e stan%ing to =uestion t1e #a(i%ity o0 t1e su29e/t a/t or
issuan/eF ot1er6ise state%, 1e must 1a#e a persona( an% su2stantia( interest in t1e
/ase su/1 t1at 1e 1as sustaine%, or 6i(( sustain, %ire/t in9ury as a resu(t o0 its
en0or/ementF CED t1e =uestion o0 /onstitutiona(ity must 2e raise% at t1e ear(iest
opportunityF an% C*D t1e issue o0 /onstitutiona(ity must 2e t1e #ery "is mota o0 t1e
/ase.
7,48

An aspe/t o0 t1e ;/aseor/ontro#ersy< re=uirement is t1e re=uisite o0
;ripeness.< In t1e Mnite% States, /ourts are /entra((y /on/erne% 6it1 61et1er a
/ase in#o(#es un/ertain /ontingent 0uture e#ents t1at may not o//ur as anti/ipate%,
or in%ee% may not o//ur at a((. Anot1er /on/ern is t1e e#a(uation o0 t1e t6o0o(%
aspe/t o0 ripeness: 0irst, t1e 0itness o0 t1e issues 0or 9u%i/ia( %e/isionF an% se/on%,
t1e 1ar%s1ip to t1e parties entai(e% 2y 6it11o(%ing /ourt /onsi%eration. In our
9uris%i/tion, t1e issue o0 ripeness is genera((y treate% in terms o0 a/tua( in9ury to t1e
p(ainti00. >en/e, a =uestion is ripe 0or a%9u%i/ation 61en t1e a/t 2eing /1a((enge%
1as 1a% a %ire/t a%#erse e00e/t on t1e in%i#i%ua( /1a((enging it.
7,?8

In t1is /ase, t1e petitioner /onteste% t1e im("eme#tatio# o0 an a((ege%
un/onstitutiona( statute, as /itiKens an% ta-payers. A//or%ing to LA"P, t1e
pra/ti/e o0)irect a((o/ation an% re(ease o0 0un%s to t1e "em2ers o0 Congress an%
t1e aut1ority gi#en to t1em to propose an% se(e/t pro9e/ts is t1e /ore o0 t1e (a6Bs
0(a6e% e-e/ution resu(ting in a serious /onstitutiona( transgression in#o(#ing t1e
e-pen%iture o0 pu2(i/ 0un%s. Mn%enia2(y, as ta-payers, LA"P 6ou(% some1o6 2e
a%#erse(y a00e/te% 2y t1is. A 0in%ing o0 un/onstitutiona(ity 6ou(% ne/essari(y 2e
tantamount to a misapp(i/ation o0 pu2(i/ 0un%s 61i/1, in turn, /ause in9ury or
1ar%s1ip to ta-payers. !1is a00or%s ;ripeness< to t1e present /ontro#ersy.

.urt1er, t1e a((egations in t1e petition %o not aim to o2tain s1eer
(ega( opinion in t1e nature o0 a%#i/e /on/erning (egis(ati#e or e-e/uti#e a/tion. !1e
possi2i(ity o0 /onstitutiona( #io(ations in t1e imp(ementation o0 PDA. sure(y
in#o(#es t1e interp(ay o0 (ega( rig1ts sus/epti2(e o0 9u%i/ia( reso(ution. .or LA"P,
t1is is t1e rig1t tore/o#er pu2(i/ 0un%s possi2(y misapp(ie% 2y no (ess t1an t1e
"em2ers o0 Congress. >en/e, 6it1out pre9u%i/e to ot1er re/ourse against
erring pu2(i/ o00i/ia(s, a((egations o0 i((ega( e-pen%iture o0 pu2(i/ 0un%s re0(e/t a
/on/rete in9ury t1at may 1a#e 2een /ommitte% 2y ot1er 2ran/1es o0 go#ernment
2e0ore t1e /ourt inter#enes. !1e possi2i(ity t1at t1is in9ury 6as in%ee% /ommitte%
/annot 2e %is/ounte%. !1e petition /omp(ains o0 i((ega( %is2ursement o0 pu2(i/
0un%s %eri#e% 0rom ta-ation an% t1is is su00i/ient reason to say t1at t1ere in%ee%
e-ists a %e0inite, /on/rete, rea( or su2stantia( /ontro#ersy 2e0ore t1e Court.

Anent "ocus sta#)i, ;t1e ru(e is t1at t1e person 61o impugns t1e #a(i%ity o0 a
statute must 1a#e a persona( an% su2stantia( interest in t1e /ase su/1 t1at 1e 1as
sustaine%, or 6i(( sustaine%, %ire/t in9ury as a resu(t o0 its en0or/ement.
7,G8
!1e gist
o0 t1e =uestion o0 stan%ing is 61et1er a party a((eges ;su/1 a persona( sta:e in t1e
out/ome o0 t1e /ontro#ersy as to assure t1at /on/rete a%#erseness 61i/1 s1arpens
t1e presentation o0 issues upon 61i/1 t1e /ourt so (arge(y %epen%s 0or i((umination
o0 %i00i/u(t /onstitutiona( =uestions.<
7,38
In pu2(i/ suits, t1e p(ainti00, representing
t1e genera( pu2(i/, asserts a ;pu2(i/ rig1t< in assai(ing an a((ege%(y i((ega( o00i/ia(
a/tion. !1e p(ainti00 may 2e a person 61o is a00e/te% no %i00erent(y 0rom any ot1er
person, an% /ou(% 2e suing as a ;stranger,< or as a ;/itiKen< or ;ta-payer.<
7)+8
!1us,
ta-payers 1a#e 2een a((o6e% to sue 61ere t1ere is a /(aim t1at pu2(i/ 0un%s are
i((ega((y %is2urse% or t1at pu2(i/ money is 2eing %e0(e/te% to any improper
purpose, or t1at pu2(i/ 0un%s are 6aste% t1roug1 t1e en0or/ement o0 an in#a(i% or
un/onstitutiona( (a6.
7),8
O0 greater import t1an t1e %amage /ause% 2y t1e i((ega(
e-pen%iture o0 pu2(i/ 0un%s is t1e morta( 6oun% in0(i/te% upon t1e 0un%amenta(
(a6 2y t1e en0or/ement o0 an in#a(i% statute.
7))8
>ere, t1e su00i/ient interest pre#enting t1e i((ega( e-pen%iture o0 money
raise% 2y ta-ation re=uire% in ta-payersB suits is esta2(is1e%. !1us, in t1e /(aim
t1at PDA. 0un%s 1a#e 2een i((ega((y %is2urse% an% 6aste% t1roug1 t1e
en0or/ement o0 an in#a(i% or un/onstitutiona( (a6, LA"P s1ou(% 2e a((o6e% to
sue. !1e /ase o0 Pascua" $. *ecretar+ of Pu,"ic -or.s
7)E8
is aut1ority in support o0
t1e petitioner:

In t(e determin$tion of t(e de#ree of interest essenti$" to #i!e t(e
requisite st$ndin# to $tt$&= t(e &onstitution$"it of $ st$tute' t(e #ener$"
ru"e is t($t not on" persons indi!idu$"" $ffe&ted' 3ut $"so t':p'&e$s h';e
sufficient inte$est in p$e;entin8 the ille8'l e:pen%itu$es of (one&s $'ise% b&
t':'tion 'n% ('& the$efo$e <uestion the constitution'lit& of st'tutes
$e<ui$in8 e:pen%itu$e of public (one&s, >22 Am/ ?ur/ -@2' Emp($sis
supp"ied/A

Last(y, t1e Court is o0 t1e #ie6 t1at t1e petition poses issues impresse% 6it1
paramount pu2(i/ interest. !1e rami0i/ation o0 issues in#o(#ing t1e un/onstitutiona(
spen%ing o0 PDA. %eser#es t1e /onsi%eration o0 t1e Court, 6arranting t1e
assumption o0 9uris%i/tion o#er t1e petition.

No6, on t1e su2stanti#e issue.

!1e po6ers o0 go#ernment are genera((y %i#i%e% into t1ree 2ran/1es: t1e
Legis(ati#e, t1e E-e/uti#e an% t1e Ju%i/iary. Ea/1 2ran/1 is supreme 6it1in its
o6n sp1ere 2eing in%epen%ent 0rom one anot1er an% it is t1is suprema/y 61i/1
ena2(es t1e /ourts to %etermine 61et1er a (a6 is /onstitutiona( or un/onstitutiona(.
7)*8
!1e Ju%i/iary is t1e 0ina( ar2iter on t1e =uestion o0 61et1er or not a 2ran/1 o0
go#ernment or any o0 its o00i/ia(s 1as a/te% 6it1out 9uris%i/tion or in e-/ess o0
9uris%i/tion or so /apri/ious(y as to /onstitute an a2use o0 %is/retion amounting to
e-/ess o0 9uris%i/tion. !1is is not on(y a 9u%i/ia( po6er 2ut a %uty to pass 9u%gment
on matters o0 t1is nature.
7)@8

Hit1 t1ese (ongesta2(is1e% pre/epts in min%, t1e Court no6 goes to t1e
/ru/ia( =uestion: In a((o6ing t1e %ire/t a((o/ation an% re(ease o0 PDA. 0un%s to t1e
"em2ers o0 Congress 2ase% on t1eir o6n (ist o0 propose% pro9e/ts, %i% t1e
imp(ementation o0 t1e PDA. pro#ision un%er t1e 5AA o0 )++* #io(ate t1e
Constitution or t1e (a6sN

!1e Court ru(es in t1e negati#e.

In %etermining 61et1er or not a statute is un/onstitutiona(, t1e Court %oes
not (ose sig1t o0 t1e presumption o0 #a(i%ity a//or%e% to statutory a/ts o0
Congress. In Fari/as $. 0!e %1ecuti$e *ecretar+,
7)48
t1e Court 1e(% t1at:

E#ery statute is presume% #a(i%. !1e presumption is t1at t1e (egis(ature
inten%e% to ena/t a #a(i%, sensi2(e an% 9ust (a6 an% one 61i/1 operates no 0urt1er
t1an may 2e ne/essary to e00e/tuate t1e spe/i0i/ purpose o0 t1e (a6. E;e$&
p$esu(ption shoul% be in%ul8e% in f';o$ of the constitution'lit& 'n% the
bu$%en of p$oof is on the p'$t& 'lle8in8 th't the$e is ' cle'$ 'n% une<ui;oc'l
b$e'ch of the Constitution.


!o 9usti0y t1e nu((i0i/ation o0 t1e (a6 or its imp(ementation, t1ere must 2e a
/(ear an% une=ui#o/a(, not a %ou2t0u(, 2rea/1 o0 t1e Constitution. In /ase o0 %ou2t
in t1e su00i/ien/y o0 proo0 esta2(is1ing un/onstitutiona(ity, t1e Court must sustain
(egis(ation 2e/ause ;to in#a(i%ate 7a (a68 2ase% on - - - 2ase(ess supposition is an
a00ront to t1e 6is%om not on(y o0 t1e (egis(ature t1at passe% it 2ut a(so o0 t1e
e-e/uti#e 61i/1 appro#e% it.<
7)?8
!1is presumption o0 /onstitutiona(ity /an 2e
o#er/ome on(y 2y t1e /(earest s1o6ing t1at t1ere 6as in%ee% an in0ra/tion o0 t1e
Constitution, an% on(y 61en su/1 a /on/(usion is rea/1e% 2y t1e re=uire% ma9ority
may t1e Court pronoun/e, in t1e %is/1arge o0 t1e %uty it /annot es/ape, t1at t1e
/1a((enge% a/t must 2e stru/: %o6n.
7)G8

!1e petition is misera2(y 6anting in t1is regar%. LA"P 6ou(% 1a#e t1e
Court %e/(are t1e un/onstitutiona(ity o0 t1e PDA.Bs en0or/ement 2ase% on t1e
a2sen/e o0 e-press pro#ision in t1e 5AA a((o/ating PDA. 0un%s to t1e "em2ers
o0 Congress an% t1e (atterBs en/roa/1ment on e-e/uti#e po6er in proposing an%
se(e/ting pro9e/ts to 2e 0un%e% 2y PDA.. Regretta2(y, t1ese a((egations (a/:
su2stantiation. No /on#in/ing proo0 6as presente% s1o6ing t1at, in%ee%, t1ere
6ere %ire/t re(eases o0 0un%s to t1e "em2ers o0 Congress, 61o a/tua((y spen%
t1em a//or%ing to t1eir so(e %is/retion. Not e#en a %o/umentation o0 t1e
%is2ursement o0 0un%s 2y t1e DB" in 0a#or o0 t1e "em2ers o0 Congress 6as
presente% 2y t1e petitioner to /on#in/e t1e Court to pro2e into t1e trut1 o0 t1eir
/(aims. De#oi% o0 any pertinente#i%entiary support t1at i((ega( misuse o0 PDA. in
t1e 0orm o0 :i/:2a/:s 1as 2e/ome a /ommon e-er/ise o0 uns/rupu(ous "em2ers
o0 Congress, t1e Court /annot in%u(ge t1e petitionerBs re=uest 0or re9e/tion o0 a (a6
61i/1 is out6ar%(y (ega( an% /apa2(e o0 (a60u( en0or/ement. In a /ase (i:e t1is, t1e
CourtBs 1an%s are tie% in %e0eren/e to t1e presumption o0 /onstitutiona(ity (est t1e
Court /ommits unpar%ona2(e 9u%i/ia( (egis(ation. !1e Court is not en%o6e% 6it1
t1e po6er o0 /(air#oyan/e to %i#ine 0rom s/anty a((egations in p(ea%ings 61ere
9usti/e an% trut1 (ie.
7)38
Again, ne6spaper or e(e/troni/ reports s1o6ing t1e
appa((ing e00e/ts o0 PDA. /annot 2e appre/iate% 2y t1e Court, 2not 2e/ause o0 any
issue as to t1eir trut1, a//ura/y, or impartia(ity, 2ut 0or t1e simp(e reason t1at 0a/ts
must 2e esta2(is1e% in a//or%an/e 6it1 t1e ru(es o0 e#i%en/e.<
7E+8


>en/e, a2sent a /(ear s1o6ing t1at an o00ense to t1e prin/ip(e o0 separation
o0 po6ers 6as /ommitte%, mu/1 (ess to(erate% 2y 2ot1 t1e Legis(ati#e an%
E-e/uti#e, t1e Court is /onstraine% to 1o(% t1at a (a60u( an% regu(ar go#ernment
2u%geting an% appropriation pro/ess ensue% %uring t1e ena/tment an% a((
t1roug1out t1e imp(ementation o0 t1e 5AA o0 )++*. !1e pro/ess 6as e-p(aine% in
t1is 6ise, in Gui#3o#a $. Cara3ue4
7E,8

2/ Budget preparation/ T(e first step is essenti$"" t$s=ed upon t(e
E1e&uti!e Br$n&( $nd &o!ers t(e estim$tion of #o!ernment re!enues' t(e
determin$tion of 3ud#et$r priorities $nd $&ti!ities <it(in t(e &onstr$ints
imposed 3 available revenues $nd 3 borrowing limits, $nd t(e
tr$ns"$tion of desired priorities $nd $&ti!ities into e1penditure "e!e"s/
Bud#et prep$r$tion st$rts <it( t(e 3ud#et &$"" issued 3 t(e
Dep$rtment of Bud#et $nd M$n$#ement/ E$&( $#en& is required to
su3mit $#en& 3ud#et estim$tes in "ine <it( t(e requirements &onsistent
<it( t(e #ener$" &ei"in#s set 3 t(e De!e"opment Bud#et Coordin$tin#
Coun&i" 9DBCC;/
Cit( re#$rd to de3t ser!i&in#' t(e DBCC st$ff' 3$sed on t(e m$&ro4
e&onomi& pro%e&tions of interest r$tes 9e/#/ LIBOR r$te; $nd estim$ted
sour&es of domesti& $nd forei#n fin$n&in#' estim$tes de3t ser!i&e "e!e"s/
Upon issu$n&e of 3ud#et &$""' t(e Bure$u of Tre$sur &omputes for t(e
interest $nd prin&ip$" p$ments for t(e e$r for $"" dire&t n$tion$"
#o!ernment 3orro<in#s $nd ot(er "i$3i"ities $ssumed 3 t(e s$me/
,/ Legislative authorization/ )) At t(is st$#e' Con#ress enters t(e
pi&ture $nd de"i3er$tes or acts on t(e 3ud#et propos$"s of t(e President'
$nd Con#ress in t(e e1er&ise of its o<n %ud#ment $nd
<isdom formulates $n $ppropri$tion $&t pre&ise" fo""o<in# t(e pro&ess
est$3"is(ed 3 t(e Constitution' <(i&( spe&ifies t($t no mone m$ 3e
p$id from t(e Tre$sur e1&ept in $&&ord$n&e <it( $n $ppropri$tion m$de
3 "$</
1 1 1
+/ Budget Execution/ T$s=ed on t(e E1e&uti!e' t(e t(ird p($se of
t(e 3ud#et pro&ess &o!ers t(e !$rious operational $spe&ts of 3ud#etin#/
T(e est$3"is(ment of o3"i#$tion $ut(orit &ei"in#s' t(e e!$"u$tion of <or=
$nd fin$n&i$" p"$ns for indi!idu$" $&ti!ities' t(e &ontinuin# re!ie< of
#o!ernment fis&$" position' t(e re#u"$tion of funds re"e$ses' t(e
imp"ement$tion of &$s( p$ment s&(edu"es' $nd ot(er re"$ted $&ti!ities
&omprise t(is p($se of t(e 3ud#et &&"e/
D/ Budget accountability/ T(e fourt( p($se refers to t(e e!$"u$tion
of $&tu$" perform$n&e $nd initi$"" $ppro!ed <or= t$r#ets' o3"i#$tions
in&urred' personne" (ired $nd <or= $&&omp"is(ed $re &omp$red <it( t(e
t$r#ets set $t t(e time t(e $#en& 3ud#ets <ere $ppro!ed/

Mn%er t1e Constitution, t1e po6er o0 appropriation is #este% in t1e
Legis(ature, su29e/t to t1e re=uirement t1at appropriation 2i((s originate e-/(usi#e(y
in t1e >ouse o0 Representati#es 6it1 t1e option o0 t1e Senate to propose or /on/ur
6it1 amen%ments.
7E)8
H1i(e t1e 2u%getary pro/ess /ommen/es 0rom t1e proposa(
su2mitte% 2y t1e Presi%ent to Congress, it is t1e (atter 61i/1 /on/(u%es t1e e-er/ise
2y /ra0ting an appropriation a/t it may %eem 2ene0i/ia( to t1e nation, 2ase% on its
o6n 9u%gment, 6is%om an% purposes. Li:e any ot1er pie/e o0 (egis(ation, t1e
appropriation a/t may t1en 2e sus/epti2(e to o29e/tion 0rom t1e 2ran/1 tas:e% to
imp(ement it, 2y 6ay o0 a Presi%entia( #eto. !1erea0ter, 2u%get e-e/ution /omes
un%er t1e %omain o0 t1e E-e/uti#e 2ran/1 61i/1 %ea(s 6it1 t1e operationa( aspe/ts
o0 t1e /y/(e in/(u%ing t1e a((o/ation an% re(ease o0 0un%s earmar:e% 0or #arious
pro9e/ts. Simp(y put, 0rom t1e regu(ation o0 0un% re(eases, t1e imp(ementation o0
payment s/1e%u(es an% up to t1e a/tua( spen%ing o0 t1e 0un%s spe/i0ie% in t1e (a6,
t1e E-e/uti#e ta:es t1e 61ee(. ;!1e DB" (ays %o6n t1e gui%e(ines 0or t1e
%is2ursement o0 t1e 0un%. !1e "em2ers o0 Congress are t1en re=ueste% 2y t1e
Presi%ent to re/ommen% pro9e/ts an% programs 61i/1 may 2e 0un%e% 0rom t1e
PDA.. !1e (ist su2mitte% 2y t1e "em2ers o0 Congress is en%orse% 2y t1e Spea:er
o0 t1e >ouse o0 Representati#es to t1e DB", 61i/1 re#ie6s an% %etermines
61et1er su/1 (ist o0 pro9e/ts su2mitte% are /onsistent 6it1 t1e gui%e(ines an% t1e
priorities set 2y t1e E-e/uti#e.<
7EE8
!1is %emonstrates t1e po6er gi#en to t1e
Presi%ent to e-e/ute appropriation (a6s an% t1ere0ore, to e-er/ise t1e spen%ing (er
se o0 t1e 2u%get.

As app(ie% to t1is /ase, t1e petition is serious(y 6anting in esta2(is1ing t1at
in%i#i%ua( "em2ers o0 Congress re/ei#e an% t1erea0ter spen% 0un%s out o0
PDA.. A(t1oug1 t1e possi2i(ity o0 t1is uns/rupu(ous pra/ti/e /annot 2e entire(y
%is/ounte%, surmises an% /on9e/tures are not su00i/ient 2ases 0or t1e Court to stri:e
%o6n t1e pra/ti/e 0or 2eing o00ensi#e to t1e Constitution. "oreo#er, t1e aut1ority
grante% t1e "em2ers o0 Congress to propose an% se(e/t pro9e/ts 6as a(rea%y
up1e(% inP!i"co#sa. !1is remains as #a(i% /ase (a6. !1e Court sees no nee% to
re#ie6 or re#erse t1e stan%ing pronoun/ements in t1e sai% /ase. So (ong as t1ere is
no s1o6ing o0 a %ire/t parti/ipation o0 (egis(ators in t1e a/tua( spen%ing o0 t1e
2u%get, t1e /onstitutiona( 2oun%aries 2et6een t1e E-e/uti#e an% t1e Legis(ati#e in
t1e 2u%getary pro/ess remain inta/t.

H1i(e t1e Court is not una6are o0 t1e yo:e /ause% 2y gra0t an% /orruption,
t1e e#i(s propagate% 2y a pie/e o0 #a(i% (egis(ation /annot 2e use% as a too( to
o#erstep /onstitutiona( (imits an% ar2itrari(y annu( a/ts o0 Congress. Again, ;a((
presumptions are in%u(ge% in 0a#or o0 /onstitutiona(ityF one 61o atta/:s a statute,
a((eging un/onstitutiona(ity must pro#e its in#a(i%ity 2eyon% a reasona2(e %ou2tF
t1at a (a6 may 6or: 1ar%s1ip %oes not ren%er it un/onstitutiona(F t1at i0 any
reasona2(e 2asis may 2e /on/ei#e% 61i/1 supports t1e statute, it 6i(( 2e up1e(%,
an% t1e /1a((enger must negate a(( possi2(e 2asesF t1at t1e /ourts are not /on/erne%
6it1 t1e 6is%om, 9usti/e, po(i/y, or e-pe%ien/y o0 a statuteF an% t1at a (i2era(
interpretation o0 t1e /onstitution in 0a#or o0 t1e /onstitutiona(ity o0 (egis(ation
s1ou(% 2e a%opte%.<
7E*8

!1ere /an 2e no =uestion as to t1e patriotism an% goo% moti#e o0 t1e
petitioner in 0i(ing t1is petition. Mn0ortunate(y, t1e petition must 0ai( 2ase% on t1e
0oregoing reasons.

W.ERE)ORE, t1e petition is DISMISSED 6it1out pronoun/ement as to
/osts.

SO ORDERED.





+OSE CATRAL MENDO-A
Asso/iate Justi/e











WE CONC*R9






RENATO C, CORONA
C1ie0 Justi/e





ANTONIO T, CARPIO PRESBITERO +, ELASCO# +R,
Asso/iate Justi/e Asso/iate Justi/e






TERESITA +, LEONARDO0DE CASTRO ART*RO D, BRION
Asso/iate Justi/e Asso/iate Justi/e





DIOSDADO M, PERALTA L*CAS P, BERSAMIN
Asso/iate Justi/e Asso/iate Justi/e





MARIANO C, DEL CASTILLO ROBERTO A, ABAD
Asso/iate Justi/e Asso/iate Justi/e





MARTIN S, ILLARAMA# +R, +OSE PORT*GAL PERE-
Asso/iate Justi/e Asso/iate Justi/e







MARIA LO*RDES P, A, SERENO BIENENIDO L, REYES
Asso/iate Justi/e Asso/iate Justi/e





ESTELA M, PERLAS0BERNABE
Asso/iate Justi/e


C E R T I ) I C A T I O N


Pursuant to Se/tion ,E, Arti/(e VIII o0 t1e Constitution, I 1ere2y /erti0y t1at
t1e /on/(usions in t1e a2o#e De/ision 1a% 2een rea/1e% in /onsu(tation 2e0ore t1e
/ase 6as assigne% to t1e 6riter o0 t1e opinion o0 t1e Court.




RENATO C, CORONA
C1ie0 Justi/e

7,8
Ro""o, p. ?.
7)8
I%. at ,,E,,?.
7E8
I%. at 3.
7*8
I%. at ,+.
7@8
I%. at ,4E.
748
I%. at ,@).
7?8
I%. at ,@*.
7G8
I%.
738
I%. at ,@4.
7,+8
!1e O00i/e o0 t1e So(i/itor 5enera( entere% its appearan/e an% 0i(e% a Comment 0or t1e Se/retary o0 t1e
Department o0 Bu%get an% "anagement, !reasurer o0 t1e P1i(ippines an% Commission on Au%it, 61i(e t1en Spea:er
o0 t1e >ouse o0 Representati#es, Jose De Vene/ia Jr. 0i(e% 1is separate Comment %ate% January 4, )++@.
7,,8
Ro""o, p. 44.
7,)8
I%. at 4).
7,E8
I%. at ,*3.
7,*8
I%. at 4?.
7,@8
5.R. No. ,,EGGG, August ,3, ,33*, )E@ SCRA @+4.
7,48
*e#ate of t!e P!i"i((i#es $. %rmita, 5.R. No. ,43???, Apri( )+, )++4, *GG SCRA ,, E@.
7,?8
Lo'a#o $. 5o3ra"es, 5.R. Nos. ,G?GGE, an% ,G?3,+, June ,4, )++3, @G3 SCRA E@4, E@G, /iting Gui#3o#a Jr. $.
Court of A((ea"s, E@* P1i(. *,@, *)?*)G.

7,G8
Peo("e $. 6era, 4@ P1i(. @4, G3 C,3E?D.
7,38
5a$arro $. %rmita, 5.R. No. ,G++@+, Apri( ,), )+,,, 4*G SCRA *++, *E*.
7)+8
Da$i) $. Maca(a3a"7Arro+o, 5.R. Nos. ,?,E34, ,?,*+3, ,?,*G@, ,?,*GE, ,?,*++, ,?,*G3 an% ,?,*)*, "ay E,
)++4, *G3 SCRA ,4+.
7),8
Pu,"ic 8#terest Ce#ter, 8#c. $. 9o#ora,"e 6ice#te :. Ro1as, i# !is ca(acit+ as Presi)i#3 Ju)3e, R0C of :ue'o#
Cit+, Bra#c! 22;, 5.R. No. ,)@@+3, January E,, )++?, @,E SCRA *@?, *?+.
7))8
Peo("e $. 6era, 4@ P1i(. @4, G3 C,3E?D.
7)E8
,,+ P1i(. EE,, E*)E*E C,34+D.
7)*8
Separate Opinion, Jo.er P. Arro+o $. 9R%0 a#) Au3usto ". *+<uco, Jr., E,4 P1i(. *4* C,33@D.
7)@8
0a#a)a $. A#3ara, EEG P1i(. @*4, @?@ C,33?D.
7)48
*4E P1i(. ,?3, ,3? C)++ED.
7)?8
A,a.a)a Guro Part+ List $. Purisima, 5.R. No. ,44?,@, August ,*, )++G, @4) SCRA )@,.
7)G8
Dri"o# $. Lim, 5.R. No. ,,)*3?, August *, ,33*, )E@ SCRA ,E@.
7)38
Dissenting Opinion, 0!e Boar) of %"ectio# 8#s(ectors et a". $. %)mu#)o *. Piccio Ju)3e of First 8#sta#ce
of Le+te at 0ac"o,a#, a#) Cesario R. Co"asito, 5.R. No. L,G@), O/to2er ,*, ,3*GJ Septem2er E+, ,3*G.
7E+8
Lim $. 9o#. %1ecuti$e *ecretar+, *E+ P1i(. @@@, @G+ C)++)D.
7E,8
)?E P1i(. **E, *4+, C,33,D.
7E)8
,3G? Constitution, Arti/(e 4 Se/tions )* an% )3 C,D.
7EE8
Ro""o, p. 3G.
7E*8
6ictoria#o $. %"i'a")e Ro(e -or.ers= >#io#, ,@G P1i(. 4+ C,3?*D.