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ENBANC

[G.R.No.140335.December13,2000]

THELMA P. GAMINDE, petitioner, vs. COMMISSION ON AUDIT and/or Hon.

CELSO D. GANGAN, Hon. RAUL C. FLORES and EMMANUEL M.
DALMAN,respondents.
DECISION
PARDO,J.:
TheCase
Thecaseisaspecialcivilactionofcertiorariseekingtoannulandsetasidetwodecisions
oftheCommissiononAuditrulingthatpetitionerstermofofficeasCommissioner,CivilService
Commission,towhichshewasappointedonJune11,1993,expiredonFebruary02,1999,as
setforthinherappointmentpaper.
TheFacts
On June 11, 1993, the President of the Philippines appointed petitioner Thelma P.
Gaminde, ad interim, Commissioner, Civil Service Commission. She assumed office on June
22, 1993, after taking an oath of office. On September 07, 1993, the Commission on
Appointment,CongressofthePhilippinesconfirmedtheappointment.Wequoteverbatimher
appointmentpaper:
11June1993
Madam:
Pursuanttotheprovisionsofexistinglaws,youareherebyappointed,adinterim,
COMMISSIONER,CIVILSERVICECOMMISSION,foratermexpiringFebruary2,1999.
Byvirtuehereof,youmayqualifyandenterupontheperformanceofthedutiesofthe
office,furnishingthisOfficeandtheCivilServiceCommissionwithcopiesofyouroathof
office.[1]
However, on February 24, 1998, petitioner sought clarification from the Office of the
President as to the expiry date of her term of office. In reply to her request, the Chief
Presidential Legal Counsel, in a letter dated April 07, 1998 [2] opined that petitioners term of
officewouldexpireonFebruary02,2000,notonFebruary02,1999.
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Relyingonsaidadvisoryopinion,petitionerremainedinofficeafterFebruary02,1999.On
February 04, 1999, Chairman Corazon Alma G. de Leon, wrote the Commission on Audit
requestingopiniononwhetherornotCommissionerThelmaP.Gamindeandhercoterminous
staff may be paid their salaries notwithstanding the expiration of their appointments on
February02,1999.
OnFebruary18,1999,theGeneralCounsel,CommissiononAudit,issuedanopinionthat
the term of Commissioner Gaminde has expired on February 02, 1999 as stated in her
appointmentconformablywiththeconstitutionalintent.[3]
Consequently,onMarch24,1999,CSCResidentAuditorFlovitasU.Felipeissuednoticeof
disallowanceNo.99002101(99),disallowinginauditthesalariesandemolumentspertaining
topetitionerandhercoterminousstaff,effectiveFebruary02,1999.[4]
On April 5, 1999, petitioner appealed the disallowance to the Commission on Audit en
banc. On June 15, 1999, the Commission on Audit issued Decision No. 99090 dismissing
petitionersappeal.TheCommissiononAuditaffirmedtheproprietyofthedisallowance,holding
thattheissueofpetitionerstermofofficemaybeproperlyaddressedbymerereferencetoher
appointment paper which set the expiration date on February 02, 1999, and that the
Commissionisbereftofpowertorecognizeanextensionofherterm,notevenwiththeimplied
acquiescenceoftheOfficeofthePresident.[5]
In time, petitioner moved for reconsideration however, on August 17, 1999, the
CommissiononAuditdeniedthemotioninDecisionNo.99129.[6]
Hence,thispetition.[7]
TheIssue
The basic issue raised is whether the term of office of Atty. Thelma P. Gaminde, as
Commissioner, Civil Service Commission, to which she was appointed on June 11, 1993,
expiredonFebruary02,1999,asstatedintheappointmentpaper,oronFebruary02,2000,as
claimedbyher.
TheCourtsRuling
The term of office of the Chairman and members of the Civil Service Commission is
prescribedinthe1987Constitution,asfollows:
Section1(2).TheChairmanandtheCommissionersshallbeappointedbythePresidentwith
theconsentoftheCommissiononAppointmentsforatermofsevenyearswithout
reappointment.Ofthosefirstappointed,theChairmanshallholdofficeforsevenyears,a
Commissionerforfiveyears,andanotherCommissionerforthreeyears,without
reappointment.Appointmenttoanyvacancyshallbeonlyfortheunexpiredtermofthe
predecessor.InnocaseshallanyMemberbeappointedordesignatedinatemporaryoracting
capacity.[8]
The 1973 Constitution introduced the first system of a regular rotation or cycle in the
membershipoftheCivilServiceCommission.Theprovisiononthe1973Constitutionreads:
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xxxTheChairmanandtheCommissionersshallbeappointedbythePrimeMinisterforaterm
ofsevenyearswithoutreappointment.OftheCommissionersfirstappointed,oneshallhold
officeforsevenyears,anotherforfiveyears,andthethirdforthreeyears.Appointmenttoany
vacancyshallbeonlyfortheunexpiredportionofthetermofthepredecessor.[9]
Actually, this was a copy of the Constitutional prescription in the amended 1935
Constitution of a rotational system for the appointment of the Chairman and members of the
CommissiononElections.TheConstitutionalamendmentcreatinganindependentCommission
onElectionsprovidesasfollows:
Section1.ThereshallbeanindependentCommissiononElectionscomposedofaChairman
andtwootherMemberstobeappointedbythePresidentwiththeconsentoftheCommission
onAppointments,whoshallholdofficeforatermofnineyearsandmaynotbereappointed.Of
theMembersoftheCommissionfirstappointed,oneshallholdofficefornineyears,anotherfor
sixyears,andthethirdforthreeyears.TheChairmanandtheotherMembersofthe
CommissiononElectionsmayberemovedfromofficeonlybyimpeachmentinthemanner
providedinthisConstitution."[10]
In Republic vs. Imperial,[11] we said that the operation of the rotational plan requires two
conditions, both indispensable to its workability: (1) that the terms of the first three (3)
Commissioners should start on a common date, and, (2) that any vacancy due to death,
resignation or disability before the expiration of the term should only be filled only for the
unexpiredbalanceoftheterm.[12]
Consequently, the terms of the first Chairmen and Commissioners of the Constitutional
Commissions under the 1987 Constitution must start on a common date, irrespective of the
variations in the dates of appointments and qualifications of the appointees, in order that the
expirationofthefirsttermsofseven,fiveandthreeyearsshouldleadtotheregularrecurrence
ofthetwoyearintervalbetweentheexpirationoftheterms.[13]
Applying the foregoing conditions to the case at bar, we rule that the appropriate starting
pointofthetermsofofficeofthefirstappointeestotheConstitutionalCommissionsunderthe
1987 Constitution must be on February 02, 1987, the date of the adoption of the 1987
Constitution.Incaseofabelatedappointmentorqualification,theintervalbetweenthestartof
thetermandtheactualqualificationoftheappointeemustbecountedagainstthelatter.[14]
In the law of public officers, there is a settled distinction between term and tenure. [T]he
termofanofficemustbedistinguishedfromthetenureoftheincumbent.Thetermmeansthe
time during which the officer may claim to hold office as of right, and fixes the interval after
which the several incumbents shall succeed one another. The tenure represents the term
duringwhichtheincumbentactuallyholdstheoffice.The term of office is not affected by the
holdover.Thetenuremaybeshorterthanthetermforreasonswithinorbeyondthepowerof
theincumbent.[15]
InconcludingthatFebruary02,1987istheproperstartingpointofthetermsofofficeofthe
first appointees to the Constitutional Commissions of a staggered 753 year terms, we
consideredtheplainlanguageofArticleIX(B),Section1(2),ArticleIX(C),Section1(2)and
ArticleIX(D),Section1(2)ofthe1987Constitutionthatuniformlyprescribedasevenyearterm
of office for Members of the Constitutional Commissions, without reappointment, and for the
firstappointeestermsofseven,fiveandthreeyears,withoutreappointment.In no case shall
anyMemberbeappointedordesignatedinatemporaryoractingcapacity.Thereisnoneedto
expressly state the beginning of the term of office as this is understood to coincide with the
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effectivityoftheConstitutionuponitsratification(onFebruary02,1987).
Ontheotherhand,ArticleXVIII,TransitoryProvisions,1987Constitutionprovides:
SEC.15.TheincumbentMembersoftheCivilServiceCommission,theCommissionon
Elections,andtheCommissiononAuditshallcontinueinofficeforoneyearaftertheratification
ofthisConstitution,unlesstheyaresoonerremovedforcauseorbecomeincapacitatedto
dischargethedutiesoftheirofficeorappointedtoanewtermthereunder.Innocaseshallany
Memberservelongerthansevenyearsincludingservicebeforetheratificationofthis
Constitution.[16]
What the above quoted Transitory Provisions contemplate is tenure not term of the
incumbent Chairmen and Members of the Civil Service Commission, the Commission on
Elections and the Commission on Audit, who shall continue in office for one year after the
ratification of this Constitution, unless they are sooner removed for cause or become
incapacitatedtodischargethedutiesoftheirofficeorappointedtoanewtermthereunder.The
termunlessimportsanexceptiontothegeneralrule.[17]Clearly,thetransitoryprovisionsmean
thattheincumbentmembersoftheConstitutionalCommissionsshallcontinueinofficeforone
yearaftertheratificationofthisConstitutionundertheirexistingappointmentsatthediscretion
of the appointing power, who may cut short their tenure by: (1) their removal from office for
cause (2) their becoming incapacitated to discharge the duties of their office, or (3) their
appointmenttoanewtermthereunder,allofwhicheventsmayoccurbeforetheendoftheone
yearperiodaftertheeffectivityoftheConstitution.
However, the transitory provisions do not affect the term of office fixed in Article IX,
providing for a sevenfivethree year rotational interval for the first appointees under this
Constitution.
Atthetimeoftheadoptionofthe1987Constitution,theincumbentChairmanandmembers
oftheCivilServiceCommissionwerethefollowing:(1)ChairpersonCelerinaG.Gotladera.She
was initially appointed as OIC Chairman on March 19, 1986, and appointed chairman on
December 24, 1986, which she assumed on March 13, 1987. (2)Atty. Cirilo G. Montejo. On
June25,1986,PresidentCorazonC.AquinoappointedhimCommissioner,withoutanyterm.
HeassumedofficeonJuly9,1986,andserveduntilMarch31,1987,whenhefiledacertificate
ofcandidacyforthepositionofCongressman,2ndDistrict,Leyte,therebyvacatinghisposition
as Commissioner. His tenure was automatically cutoff by the filing of his certificate of
candidacy. (3) Atty. Mario D. Yango. On January 22, 1985, President Ferdinand E. Marcos
appointedhimCommissionerforatermexpiringJanuary25,1990.HeserveduntilFebruary2,
1988,whenhistermendedinvirtueofthetransitoryprovisionsreferredto.OnMay30,1988,
PresidentAquino reappointed him to a new threeyear term and served until May 31, 1991,
exceeding his lawful term, but not exceeding the maximum of seven years, including service
before the ratification of the 1987 Constitution. Under this factual milieu, it was only
CommissionerYangowhowasextendedanewtermunderthe1987Constitution.The period
consumedbetweenthestartofthetermonFebruary02,1987,andhisactualassumptionon
May30,1988,duetohisbelatedappointment,mustbecountedagainsthim.
Given the foregoing common starting point, we compute the terms of the first appointees
and their successors to the Civil Service Commission under the 1987 Constitution by their
respectivelines,asfollows:
Firstline:Chairmansevenyearterm.February02,1987toFebruary01,1994.OnJanuary
30, 1988, the President nominated Ms. Patricia A. Sto. Tomas Chairman, Civil Service
Commission.OnMarch02,1988,theCommissiononAppointmentsconfirmedthenomination.
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SheassumedofficeonMarch04,1988.HertermendedonFebruary02,1994.Sheservedas
de facto Chairman until March 04, 1995. On March 05, 1995, the President appointed then
SocialWelfareSecretaryCorazonAlmaG.deLeon,Chairman,CivilServiceCommission,toa
regularsevenyearterm.ThistermmustbedeemedtostartonFebruary02,1994,immediately
succeedingherpredecessor,whosetermstartedonthecommondateofthetermsofofficeof
thefirstappointeesunderthe1987Constitution.SheassumedofficeonMarch22,1995,fora
termexpiringFebruary02,2001.
Thisisshowninherappointmentpaper,quotedverbatimasfollows:
March5,1995
Madam:
PursuanttotheprovisionsofArticleVII,Section16,paragraph2,oftheConstitution,
youareherebyappointed,adinterim,CHAIRMAN,CIVILSERVICECOMMISSION,fora
termexpiringFebruary2,2001.
Byvirtuehereof,youmayqualifyandenterupontheperformanceofthedutiesofthe
office,furnishingthisOfficeandtheCivilServiceCommissionwithcopiesofyouroathof
office.
(Sgd.)FIDELV.RAMOS
Secondline:CommissionerFiveyearterm.February 02, 1987 to February 02, 1992. On
January 30, 1988, the President nominated Atty. Samilo N. Barlongay Commissioner, Civil
Service Commission. On February 17, 1988, the Commission onAppointments, Congress of
the Philippines, confirmed the nomination. He assumed office on March 04, 1988. His term
endedonFebruary02,1992.HeservedasdefactoCommissioneruntilMarch04,1993.
OnJune11,1993,thePresidentappointedAtty.ThelmaP.GamindeCommissioner,Civil
ServiceCommission,foratermexpiringFebruary02,1999.[18]Thisterminaldateisspecifiedin
herappointmentpaper.OnSeptember07,1993,theCommissiononAppointmentsconfirmed
theappointment.SheacceptedtheappointmentandassumedofficeonJune22,1993.Sheis
bound by the term of the appointment she accepted, expiring February 02, 1999. In this
connection,theletterdatedApril07,1998,ofDeputyExecutiveSecretaryRenatoC.Corona [19]
clarifyingthathertermwouldexpireonFebruary02,2000,wasinerror.Whatwassubmittedto
theCommissiononAppointmentswasanominationforatermexpiringonFebruary02,1999.
Thus,thetermofhersuccessor[20]mustbedeemedtostartonFebruary02,1999,andexpire
onFebruary02,2006.
Thirdline:CommissionerThreeyearterm.February02,1987toFebruary02,1990.Atty.
Mario D. Yango was incumbent commissioner at the time of the adoption of the 1987
Constitution. His extended tenure ended on February 02, 1988. In May, 1988, President
Corazon C. Aquino appointed him Commissioner, Civil Service Commission to a new three
yeartermthereunder.He assumed office on May 30, 1988. His term ended on February 02,
1990, but served as defacto Commissioner until May 31, 1991.On November 26, 1991, the
President nominatedAtty. Ramon P. Ereeta as Commissioner, Civil Service Commission. On
December04,1991,theCommissiononAppointmentsconfirmedthenomination.Heassumed
officeonDecember12,1991,foratermexpiringFebruary02,1997.[21]
Commendably, he voluntarily retired on February 02, 1997. On February 03, 1997,
President Fidel V. Ramos appointed Atty. Jose F. Erestain, Jr. Commissioner, Civil Service
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Commission,foratermexpiringFebruary02,2004.HeassumedofficeonFebruary11,1997.
Thus, we see the regular interval of vacancy every two (2) years, namely, February 02,
1994,forthefirstChairman,[22]February02,1992,forthefirstfiveyeartermCommissioner,[23]
and February 02, 1990, for the first threeyear term Commissioner.[24] Their successors must
alsomaintainthetwoyearinterval,namely:February02,2001,forChairman[25]February02,
1999,forCommissionerThelmaP.Gaminde,andFebruary02,1997,forCommissionerRamon
P.Ereeta,Jr.
Thethirdbatchofappointeeswouldthenbehavingtermsofofficeasfollows:
Firstline:Chairman,February02,2001toFebruary02,2008Secondline:Commissioner,
February02,1999toFebruary02,2006[26]and,Thirdline:Commissioner,February02,1997
toFebruary02,2004,[27]therebyconsistentlymaintainingthetwoyearinterval.
Thelineofsuccession,termsofofficeandtenureoftheChairmanandmembersoftheCivil
ServiceCommissionmaybeoutlinedasfollows:[28]
ChairmanTermTenure
(7yearoriginal)
Sto.Tomas1stappointeeFeb.02,1987toMar.04,1988to
Feb.02,1994March08,1995
DeLeon2ndappointeeFeb.02,1994toMarch22,1995to
(incumbent)Feb.02,2001Feb.02,2001
_______3rdappointeeFeb.02,2001to
Feb.02,2008
nd
2 MemberTermTenure
(5yearoriginal)
Barlongay1stappointeeFeb.02,1987toMarch04,1988to
Feb.02,1992March04,1993
Gaminde2ndappointeeFeb.02,1992toJune11,1993to
Feb.02,1999Feb.02,2000
Valmores3rdappointeeFeb.02,1999toSept.08,2000to
(incumbent)Feb.02,2006Feb.02,2006
3rdMemberTermTenure
(3yearoriginal)
Yango1stappointeeFeb.02,1987toMay30,1988to
Feb.02,1990May31,1991
Ereeta2ndappointeeFeb.02,1990toDec.12,1991to
Feb.02,1997Feb.02,1997
Erestain,Jr.3rdappointeeFeb.02,1997toFeb.11,1997to
(incumbent)Feb.02,2004Feb.02,2004
TheFallo
WHEREFORE, we adjudge that the term of office of Ms. Thelma P. Gaminde as
Commissioner,CivilServiceCommission,underanappointmentextendedtoherbyPresident
FidelV.RamosonJune11,1993,expiredonFebruary02,1999.However,sheservedasde
factoofficer in good faith until February 02, 2000, and thus entitled to receive her salary and
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otheremolumentsforactualservicerendered.Consequently,theCommissiononAuditerredin
disallowinginauditsuchsalaryandotheremoluments,includingthatofhercoterminousstaff.
ACCORDINGLY,weREVERSEthedecisionsoftheCommissiononAuditinsofarasthey
disallow the salaries and emoluments of Commissioner Thelma P. Gaminde and her
coterminousstaffduringhertenureasdefactoofficerfromFebruary02,1999,untilFebruary
02,2000.
Thisdecisionshallbeeffectiveimmediately.
Nocosts.
SOORDERED.
Davide,Jr.,C.J.,Melo,Vitug,Kapunan,Panganiban,Quisumbing,Buena,GonzagaReyes,
andYnaresSantiago,JJ.,concur.
BellosilloJ.,nopart.Relatedtooneofparties.
PunoJ.,intheresult.
Mendoza,J.,joinDeLeonsdissent.
DeLeon,Jr.,J.,seeconcurring&dissentingopinion.
[1]Petition,AnnexC,Rollo,p.32.
[2]Ibid.,AnnexE,Rollo,p.34.
[3]Ibid.,AnnexF,Rollo,pp.7779.
[4]Rollo,pp.4243.
[5]Petition,AnnexA,Rollo,pp.2026.
[6]Petition,AnnexB,Rollo,pp.2731.
[7]FiledonOctober27,1999,Rollo,pp.319.
[8]ArticleIX,Section1(2),1987Constitution.
[9]ArticleXII,Section1(1),1973Constitution.
[10]ArticleX,Section1,1935Constitution,asamended.
[11]96Phil.770[1955].
[12]Ibid.,atp.776.
[13]Ibid.,atp.779.
[14]Ibid.
[15]TopacioNuenov.Angeles,76Phil.12,2122[1946]Albav.Evangelista,100Phil.683,694[1957]Paredesv.

Abad,155Phil.494[1974]Aparriv.CourtofAppeals,127SCRA240[1984]
[16]ArticleXVIII,1987Constitution.
[17]Tajanlangitv.Cazenas,115Phil.568(1962).
[18]Petition,AnnexC,Rollo,p.32.
[19]Petition,AnnexE,Rollo,p.34.
[20]CommissionerJ.WaldemarValmores.
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[21]Noticethathistenurewasreducedtoonlyfive(5)years,one(1)monthandtwentyone(21)days.
[22]Ms.PatriciaA.Sto.Tomas.
[23]Atty.SamiloN.Barlongay.
[24]Atty.MarioD.Yango.
[25]SocialWelfareSecretaryCorazonAlmaG.deLeon.
[26]DeanJ.WaldemarV.Valmores.
[27]Atty.JoseF.Erestain,Jr.
[28]Visarrav.Miraflor,118Phil.1,3[1963].

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