Public Officers GR No. 185740 [2013] QUOTED

7/23/2019 Public Officers GR No. 185740 [2013] QUOTED

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Republic of the PhilippinesSUPREME COURT

ManilaEN BANC

.R. No. 185740 July 23, 2013

HE PROVINCIA GOVERNMENT O! CAMARINES NORTE,#$"#%#&'#( )y GOVERNOR JESUS O. T*POCO, JR., etitioner,s.EATRI O. GONAES, Respondent.

D E C I S I N

RION, J.:

e resolve the Provincial "overn#ent of Ca#arines Norte$s

petitioner& petition for revie' on certiorari( assailin) theecision* dated +une *, *-- and the Resolution/ datedece#ber *, *-- of the Court of Appeals %CA& in CA0".R. SP N23*, reinstatin) respondent Beatri4 . "on4ales as the Provif Ca#arines Norte5s provincial ad#inistrator, or to an e6uivaleosition.

7actual Antecedents

on4ales 'as appointed as the provincial ad#inistrator of therovince of Ca#arines Norte b8 then "overnor Ro8 A. Padilla, +rn April (, (11(. 9er appoint#ent 'as on a per#anent capacitn March , (111, "overnor +ess B. Pi#entel sent "on4ales a



e#orandu# directin) her to e:plain in 'ritin) 'h8 nod#inistrative char)es should be ;led a)ainst her for )rosssubordination<)ross discourtes8 in the course of o=cial dutie

nd conduct )rossl8 pre>udicial to the best interest of the serviis 'as later on captioned as Ad#inistrative Case No. --(. Afton4ales sub#itted her co##ent, an Ad 9oc Investi)ationo##ittee found her )uilt8 of the char)es a)ainst her, andeco##ended to "overnor Pi#entel that she be heldd#inistrativel8 liable.3 n Septe#ber /-, (111, "overnor#entel adopted the Ad 9oc Investi)ation Co##ittee5s

eco##endation and dis#issed "on4ales.

roceedin)s before the Civil Service Co##ission

on4ales appealed "overnor Pi#entel5s decision to the Civilervice Co##ission %CSC&. @he CSC issued Resolution No.-(3( #odif8in) "overnor Pi#entel5s decision, ;ndin)on4ales )uilt8 of insubordination and suspendin) her for si:onths. @his decision 'as appealed b8 "overnor Pi#entel, 'hie CSC denied in its Resolution No. --(1*.2

on4ales then ;led a #otion for e:ecution and clari;cation ofesolution No. --(3(, in 'hich she clai#ed that she had alreaerved her si:0#onth suspension and ased to be reinstated. @SC issued Resolution No. --**3, 'hich directed "on4ales5einstate#ent.

overnor Pi#entel reinstated "on4ales as provincial ad#inistran ctober (*, *---, but ter#inated her services the ne:t da8c of con;dence. 9e then 'rote a letter1 to the CSC reportin)s co#pliance 'ith its order, and "on4ales5 subse6uent dis#iss a con;dential e#plo8ee. In his letter, "overnor Pi#entel cite



esolution No. ---((,(- 'here the CSC ruled that the provincd#inistrator position is hi)hl8 con;dential and is coter#inousature.

he CSC responded throu)h Resolution No. -/---,(( 'hich a)rected "on4ales5 reinstate#ent as provincial ad#inistrator. Itari;ed that 'hile the ocal "overn#ent Code of (11( %Repubct No. RA 2(-& #ade the provincial ad#inistrator positionoter#inous and hi)hl8 con;dential in nature, this conversionannot operate to pre>udice o=cials 'ho 'ere alread8 issueder#anent appoint#ents as ad#inistrators prior to the ne' la'

ectivit8. Accordin) to the CSC, "on4ales has ac6uired a veste)ht to her per#anent appoint#ent as provincial ad#inistratond is entitled to continue holdin) this o=ce despite itsubse6uent classi;cation as a coter#inous position. @heonversion of the provincial ad#inistrator position fro# a caree a non0career service should not >eopardi4e "on4ales5 securit

f tenure )uaranteed to her b8 the Constitution. As a per#ane

ppointee, "on4ales #a8 onl8 be re#oved for cause, after dueotice and hearin). oss of trust and con;dence is not a#on) trounds for a per#anent appointee5s dis#issal or discipline un:istin) la's.

a letter(* dated 7ebruar8 (2, *--, "on4ales 'rote the CSCle)in) that "overnor +esus . @8poco, +r., Ca#arines Norte5scu#bent )overnor, refused to reinstate her. @he CSC respond

ith Resolution No. -(1,(/ 'hich ordered "on4ales5einstate#ent to the provincial ad#inistrator position, or to an6uivalent position.@hus, the petitioner, throu)h "overnor8poco, ;led a petition for revie' before the CA, seein) to nul



e CSC5s Resolution No. -/--- and Resolution No. -(1.

@he Appellate Court5s Rulin)

he CA supported the CSC5s rulin) that reinstated "on4ales asrovincial ad#inistrator or to an e6uivalent position.(3

tin) A6uino v. Civil Service Co##ission,( the CA e#phasi4edat an appointee ac6uires a le)al ri)ht to his position once he

ssu#es a position in the civil service under a co#pletedppoint#ent. @his le)al ri)ht is protected both b8 statute and tonstitution, and he cannot be re#oved fro# o=ce 'ithout cand previous notice and hearin). Appointees cannot be re#ovet the #ere 'ill of those vested 'ith the po'er of re#oval, orithout an8 cause.

he CA then enu#erated the list of valid causes for a public=cer5s re#oval under Section 3,( Boo , @itle I, Subtitle A oe Revised Ad#inistrative Code %Ad#inistrative Code&, and no

at lac of con;dence 'as not in the list. @hus, the CA concludat "on4ales5 dis#issal on the )round of loss of con;denceolated her securit8 of tenure, and that she has the ri)ht to be

einstated 'ith pa8#ent of bac'a)es.

he CA further held that "on4ales5 dis#issal 'as ille)al becaus'as done 'ithout due process. @he proceedin)s underd#inistrative Case No. --( cannot be the basis for co#pl8in)

ith the re6uire#ents of due process because the8 are separatnd distinct fro# the proceedin)s in the present controvers8.hus, "on4ales 'as ille)all8 ter#inated 'hen she 'as dis#isser lac of con;dence, 'ithout an8 hearin), the da8 after she '



einstated.

astl8, the CA noted that Resolution No. --**3, 'hich #odi;eovernor Pi#entel5s decision, has lon) been ;nal and e:ecutor

he petitioner did not ;le an8 petition for reconsideration a)ainesolution No. --**3, and hence, it is no lon)er alterable.

he petitioner sou)ht a reconsideration(2 of the CA5s Decision,hich the CA denied in a Resolution( dated Dece#ber *, *--

he Present Petition

its present petition for revie' on certiorari, the petitionerr)ues that the provincial ad#inistrator position has beenonverted into a hi)hl8 con;dential, coter#inous position b8 RA(-. 9ence, "on4ales no lon)er en>o8ed securit8 of tenure toe position she held prior to RA 2(-5s enact#ent.

her Co##ent(1 and Me#orandu#,*- "on4ales #aintained the provincial ad#inistrator re#ained a career service position

ection 2*( of Presidential Decree No. -2, 'hich 'as one of thases of the Court in aurel v. Civil Service Co##ission** toeclare the provincial ad#inistrator as a career service positiona verbati# cop8 of Section 2,*/ Chapter * of the Ad#inistrati

ode. @his classi;cation, established b8 la' and >urisprudence,annot be altered b8 the #ere i#ple#entin) rules ande)ulations of RA 2(-. And assu#in) ar)uendo that the

rovincial ad#inistrator position has indeed beco#e a pri#aril8on;dential position, this reclassi;cation should not appl8etroactivel8 to "on4ales5 appoint#ent on a per#anent capacitrior to RA 2(-5s eectivit8.



Issues

he parties5 ar)u#ents, properl8 >oined, present to us thello'in) issuesF

(& !hether Con)ress has re0classi;ed the provincialad#inistrator position fro# a career service to a pri#aril8con;dential, non0career service position? and

*& !hether "on4ales has securit8 of tenure over her positioas provincial ad#inistrator of the Province of Ca#arinesNorte.

@he Court5s Rulin)

e ;nd the petition #eritorious.

on)ress has reclassi;ed the provincial ad#inistrator position pri#aril8 con;dential, non0career position

e support the CSC5s conclusion that the provincial ad#inistraosition has been classi;ed into a pri#aril8 con;dential, non0areer position 'hen Con)ress, throu)h RA 2(-, #adeubstantial chan)es to it. 7irst, prior to RA 2(-, Batas Pa#ban). //2, the old ocal "overn#ent Code %"C&, did not include

rovincial ad#inistrator position a#on) the listin) of #andatorrovincial o=cials,*3 but e#po'ered the San))unian)anlala'i)an to create such other o=ces as #i)ht then beecessar8 to carr8 out the purposes of the provincialovern#ent.* RA 2(- #ade the position #andator8 for ever8rovince.* @hus, the creation of the provincial ad#inistratorosition under the old "C used to be a prero)ative of the



an))unian) Panlala'i)an.

econd, in introducin) the #andator8 provincial ad#inistratorosition, RA 2(- also a#ended the 6uali;cations for the

rovincial ad#inistrator position. !hile Section 3-*2 of RA 2(etained the re6uire#ent of civil service eli)ibilit8 for a provincd#inistrator, to)ether 'ith the educational re6uire#ents, ithortened the si:08ear 'or e:perience re6uire#ent to ;veears.* It also #andated the additional re6uire#ents of residethe local )overn#ent concerned, and i#posed a )ood #oral

haracter re6uire#ent.

hird, RA 2(- #ade the provincial ad#inistrator positionoter#inous 'ith its appointin) authorit8, reclassif8in) it as aon0career service position that is pri#aril8 con;dential.

efore RA 2(- too eect, aurel classi;ed the provinciald#inistrator position as an open career position 'hich re6uireuali;cation in an appropriate e:a#ination prior to appoint#en

aurel placed the provincial ad#inistrator position under theecond #a>or level of positions in the career service underection 2 of Presidential Decree No. -2. @his provision readsF

ection 2. Classes of Positions in the Career Service.

& Classes of positions in the career service appoint#ent tohich re6uires e:a#inations shall be )rouped into three #a>or

vels as follo'sF

: : : :

@he second level shall include professional, technical, andcienti;c positions 'hich involve professional, technical, or



cienti;c 'or in a non0supervisor8 or supervisor8 capacit8e6uirin) at least four 8ears of colle)e 'or up to Division Chievel.

ection 3- of RA 2(- #ade the provincial ad#inistrator5snctions closel8 related to the prevailin) provincial

d#inistration b8 identif8in) the incu#bent 'ith the provincialovernor to ensure the ali)n#ent of the )overnor5s direction foe province 'ith 'hat the provincial ad#inistrator 'ould

#ple#ent. In contrast 'ith the )eneral direction provided b8 trovincial )overnor under the Manual of Position Descriptions

ted in aurel, Section 3-%b& of RA 2(- no' #andates constteraction bet'een the provincial ad#inistrator and therovincial )overnor, to 'itF

b& @he ad#inistrator shall tae char)e of the o=ce of thed#inistrator and shallF

%(& Develop plans and strate)ies and upon approval thereo

b8 the )overnor or #a8or, as the case #a8 be, i#ple#ent sa#e particularl8 those 'hich have to do 'ith the#ana)e#ent and ad#inistration0related pro)ra#s andpro>ects 'hich the )overnor or #a8or is e#po'ered toi#ple#ent and 'hich the san))unian is e#po'ered toprovide for under this Code?

%*& In addition to the fore)oin) duties and functions, thead#inistrator shallF

& Assist in the coordination of the 'or of all the o=cials of thcal )overn#ent unit, under the supervision, direction, and

ontrol of the )overnor or #a8or, and for this purpose, he #a8



onvene the chiefs of o=ces and other o=cials of the localovern#ent unit?

: : : :

3& Reco##end to the san))unian and advise the )overnor ana8or, as the case #a8 be, on all other #atters relative to theana)e#ent and ad#inistration of the local )overn#ent unit.#phases and italics oursH

s the CSC correctl8 noted in Resolution No. ---((,*1 thed#inistrator position de#ands a close inti#ate relationship 'e o=ce of the )overnor %its appointin) authorit8& to eective

evelop, i#ple#ent and ad#inister the dierent pro)ra#s of trovince. @he ad#inistrator5s functions are to reco##end to than))unian and to advise the )overnor on all #atters re)ardine #ana)e#ent and ad#inistration of the province, thus

e6uirin) that its occupant en>o8 the )overnor5s full trust andon;dence.

o e#phasi4e the close relations that the provinciald#inistrators5 functions have 'ith the o=ce of the )overnor, (- even #ade the provincial ad#inistrator positionoter#inous 'ith its appointin) authorit8./- @his provision, alonith the interrelations bet'een the provincial ad#inistrator anovernor under Section 3-, renders clear the intent of Con)re #ae the provincial ad#inistrator position pri#aril8

on;dential under the non0career service cate)or8 of the civilervice.

on)ress5 reclassi;cation of the provincial ad#inistrator positioRA 2(- is a valid e:ercise of le)islative po'er that does not



olate "on4ales5 securit8 of tenure

avin) established that Con)ress has chan)ed the nature of throvincial ad#inistrator position to a pri#aril8 con;dential

#plo8ee, the ne:t 6uestion to address 'ould be its i#pact onon4ales5 securit8 of tenure. Accordin) to the petitioner,on4ales lost her securit8 of tenure 'hen the provinciald#inistrator position beca#e a pri#aril8 con;dential positionon4ales, on the other hand, retorted that the conversion of thosition should not be retroactivel8 applied to her, as she is aer#anent appointee. Both the CA and the CSC ruled in favor o

e latter, and )ave pre#iu# to "on4ales5 ori)inal per#anentppoint#ent under the old "C. @he8 posit that "on4alesc6uired a vested le)al ri)ht over her position fro# the #o#enhe assu#ed her duties as provincial ad#inistrator. @hus, sheannot be re#oved fro# o=ce e:cept for cause and after dueearin)? other'ise such re#oval 'ould a#ount to a violation oer securit8 of tenure.

he ar)u#ents presented b8 the parties and ruled upon b8 theA reect a conceptual entan)le#ent bet'een the nature of thosition and an e#plo8ee5s ri)ht to hold a position. @hese t'ooncepts are dierent. @he nature of a position #a8 chan)e b8' accordin) to the dictates of Con)ress. @he ri)ht to hold aosition, on the other hand, is a ri)ht that en>o8s constitutionalnd statutor8 )uarantee, but #a8 itself chan)e accordin) to th

ature of the position.

on)ress has the po'er and prero)ative to introduce substantihan)es in the provincial ad#inistrator position and to reclassias a pri#aril8 con;dential, non0career service position. 7lo'i



o# the le)islative po'er to create public o=ces is the po'er bolish and #odif8 the# to #eet the de#ands of societ8?/( on)ress can chan)e the 6uali;cations for and shorten the ter#

f e:istin) statutor8 o=ces. !hen done in )ood faith, these actould not violate a public o=cer5s securit8 of tenure, even if thesult in his re#oval fro# o=ce or the shortenin) of his ter#./*

odi;cations in public o=ce, such as chan)es in 6uali;cations hortenin) of its tenure, are #ade in )ood faith so lon) as the8re ai#ed at the o=ce and not at the incu#bent.//

Salcedo and I)nacio v. Carpio and Carreon,/3 for instance,

on)ress enacted a la' #odif8in) the o=ces in the Board ofental E:a#iners. @he ne' la', RA 3, raised the 6uali;catior the board #e#bers, and provided for a dierent appoint#e

rocess. Dr. Alfonso C. Salcedo and Dr. Pascual I)nacio, 'ho 'ecu#bent board #e#bers at the ti#e RA 3 too eect, ;led

pecial civil action for 6uo 'arranto a)ainst their replace#entsr)uin) that their ter# of o=ce under the old la' had not 8et

:pired, and neither had the8 abandoned or been re#oved fro=ce for cause. !e dis#issed their petition, and held thaton)ress #a8, b8 la', ter#inate the ter# of a public o=ce at a#e and even 'hile it is occupied b8 the incu#bent. @hus,hether Dr. Salcedo and Dr. I)nacio 'ere re#oved for cause orad abandoned their o=ce is i##aterial.

ore recentl8, in Di#a8u)a v. Benedicto II,/ 'e upheld the

e#oval of Chona M. Di#a8u)a, a per#anent appointee to the:ecutive Director II position, 'hich 'as not part of the career:ecutive service at the ti#e of her appoint#ent. Durin) hercu#benc8, the CSC, b8 authorit8 )ranted under Presidentialecree No. (, classi;ed the E:ecutive Director II position to be



ithin the career e:ecutive service. Since Di#a8u)a 'as not aareer e:ecutive service o=cer, her initiall8 per#anentppoint#ent to the position beca#e te#porar8? thus, she coul

e re#oved fro# o=ce at an8 ti#e.the current case, Con)ress, throu)h RA 2(-, did not abolishe provincial ad#inistrator position but si)ni;cantl8 #odi;edan8 of its aspects. It is no' a pri#aril8 con;dential position

nder the non0career service tranche of the civil service. @hishan)e could not have been ai#ed at pre>udicin) "on4ales, ashe 'as not the onl8 provincial ad#inistrator incu#bent at the

#e RA 2(- 'as enacted. Rather, this chan)e 'as part of theefor# #easures that RA 2(- introduced to further e#po'ercal )overn#ents and decentrali4e the deliver8 of public serviection /%b& of RA 2(- provides as one of its operative principatF

b& @here shall be established in ever8 local )overn#ent unit accountable, e=cient, and d8na#ic or)ani4ational structure anperatin) #echanis# that 'ill #eet the priorit8 needs andervice re6uire#ents of its co##unities.

hus, "on4ales5 per#anent appoint#ent as provinciald#inistrator prior to the enact#ent of RA 2(- is i##aterial ter re#oval as provincial ad#inistrator. 7or purposes ofeter#inin) 'hether "on4ales5 ter#ination violated her ri)ht t

ecurit8 of tenure, the nature of the position she occupied at th#e of her re#oval should be considered, and not #erel8 theature of her appoint#ent at the ti#e she entered )overn#entervice.

echoin) the CSC and the CA5s conclusion, the dissentin)



pinion posits the vie' that securit8 of tenure protects theer#anent appoint#ent of a public o=cer, despite subse6uenthan)es in the nature of his position.

tin) "abriel v. Do#in)o,/ the dissentin) opinion 6uotes ourate)orical declaration that Ja per#anent e#plo8ee re#ains aer#anent e#plo8ee unless he is validl8 ter#inated,J and fro#ere atte#pts to dra' an analo)8 bet'een "abriel and the ca

t hand.

he ver8 ;rst sentence of "abriel spells out its vast dierence

o# the present case. @he sole and #ain issue in "abriel ishether bac'a)es and other #onetar8 bene;ts could be'arded to an ille)all8 dis#issed )overn#ent e#plo8ee, 'ho 'ter ordered reinstated. 7ro# this sentence alone can bescerned that the issues involved related to the conse6uencese)al dis#issal rather than to the dis#issal itself. No'here inabriel'as there an8 #ention of a chan)e in the nature of theosition held b8 the public o=cer involved.

urther, e8 factual dierences #ae "abriel inapplicable to thresent case, even if onl8 b8 analo)8F ;rst, the public o=cer inabriel received a Me#orandu# statin) that he 'ould beppointed as @ransportation District Supervisor III under their=ce reor)ani4ation. Second, the Court in "abriel clearl8 pointut that the reason for his eventual appoint#ent as a casual

#plo8ee, 'hich led to his ter#ination fro# service, 'as due tendin) protest he ;led before the CSC K indicatin) that thereas no )round for hi# to not receive the appoint#ent earlierro#ised. In contrast, the issue of "on4ales is 'hether theppointin) authorit85s lac of trust and con;dence in the



ppointee 'as su=cient cause for the ter#ination of e#plo8#f a pri#aril8 con;dential e#plo8ee. And third, there 'as ahan)e in the position held b8 the public o=cer in "abriel. 9e

as a per#anent e#plo8ee 'ho 'as e:tended a dierentppoint#ent, 'hich 'as casual in nature, because of a protestat he earlier ;led. In contrast, the current case involves a pub

=cer 'ho held the sa#e position 'hose nature chan)edecause of the passa)e of RA 2(-.

he dissent also 6uotes the penulti#ate para)raph of Civilervice Co##ission v. +avier/2 to support its contention that

er#anent appointees could e:pect protection for their tenurend appoint#ents in the event that the Court deter#ines that osition is actuall8 con;dential in natureF

he Court is a'are that this decision has repercussions on thenure of other corporate secretaries in various "CCs. @he

=cers liel8 assu#ed their positions on per#anent careeratus, e:pectin) protection for their tenure and appoint#entsut are no' re0classi;ed as pri#aril8 con;dential appointees.uch concern is unfounded, ho'ever, since the statutese#selves do not classif8 the position of corporate secretar8 a

er#anent and career in nature. Moreover, there is no absoluteuarantee that it 'ill not be classi;ed as con;dential 'hen aspute arises. As earlier stated, the Court, b8 le)al tradition, he po'er to #ae a ;nal deter#ination as to 'hich positions i

overn#ent are pri#aril8 con;dential or other'ise. In the li)hte instant controvers8, the Court$s vie' is that the )reater pubterest is served if the position of a corporate secretar8 isassi;ed as pri#aril8 con;dential in nature./



he 6uoted portion, ho'ever, even bolsters our theor8. Read)ether 'ith its succeedin) para)raph, the 6uoted portion invil Service Co##ission v. +avier/1 actuall8 stands for the

roposition that other corporate secretaries in )overn#ent0o'nnd Kcontrolled corporations cannot e:pect protection for theirnure and appoint#ents upon the reclassi;cation of their

osition to a pri#aril8 con;dential position. @here, the Court#phasi4ed that these o=cers cannot rel8 on the statutesrovidin) for their per#anent appoint#ents, if and 'hen theourt deter#ines these to be pri#aril8 con;dential. In theucceedin) para)raph after the portion 6uoted b8 the dissent, ven pointed out that there is no vested ri)ht to public o=ce, npublic service a propert8 ri)ht. @husF

oreover, it is a basic tenet in the countr8$s constitutional s8stat Jpublic o=ce is a public trust,J and that there is no vested

)ht in public o=ce, nor an absolute ri)ht to hold o=ce. Noroprietar8 title attaches to a public o=ce, as public service is

propert8 ri)ht. E:ceptin) constitutional o=ces 'hich provide pecial i##unit8 as re)ards salar8 and tenure, no one can beaid to have an8 vested ri)ht in an o=ce. @he rule is that o=ce

)overn#ent, e:cept those created b8 the constitution, #a8 bbolished, altered, or created an8ti#e b8 statute. And an8 issun the classi;cation for a position in )overn#ent #a8 be brou) and deter#ined b8 the courts.3- %e#phases and italics ours&

:ecutive rder No. -/ does not )rant "on4ales securit8 ofnure in the provincial ad#inistrator position on a per#anent

apacit8

e:tendin) securit8 of tenure to "on4ales5 per#anent



ppoint#ent as provincial ad#inistrator, the dissentin) opiniontes as authorit8 E:ecutive rder No. %E& -/ 'hich providedertain safe)uards a)ainst the ter#ination of )overn#ent

#plo8ees aected b8 the i#ple#entation of RA 2(-. Accord the dissentin) opinion, E -/ is an obvious indication of the:ecutive depart#ent5s intent to protect and uphold both theational )overn#ent and the local )overn#ent e#plo8ees5ecurit8 of tenure. It cites Section *%a&, para)raph %providin) e tenure of an ad#inistrator& to prove its pointF

Incu#bents of positions, na#el8 ad#inistrator, le)al o=cer,

nd infor#ation o=cer declared b8 the Code as coter#inous, 'old per#anent appoint#ents, shall continue to en>o8 theirer#anent status until the8 vacate their positions.

t ;rst )lance, E -/ does see# to e:tend the provinciald#inistrators5 securit8 of tenure in their per#anentppoint#ents even be8ond the eectivit8 of RA 2(-. E -/,o'ever, does not appl8 to e#plo8ees of the local )overn#entected b8 RA 2(-5s enact#ent. @he title of E -/ clearl8rovides for its scope of application, to 'itF

:ecutive rder No. -/. Providin) for the Rules and Re)ulation#ple#entin) the @ransfer of Personnel and Assets, iabilities aecords of National "overn#ent A)encies 'hose 7unctions aree Devolved to the ocal "overn#ent Lnits and for other Relat

urposes. Gunderscore, italics and e#phases oursH

readin) of E -/5s 'hereas clauses con;r#s that it appliesnl8 to national )overn#ent e#plo8ees 'hose functions are toevolved to local )overn#entsF



9EREAS, Republic Act No. 2(-, other'ise no'n as the ocaovern#ent Code of (11(, hereinafter referred to as the Code,ansfers the responsibilit8 for the deliver8 of basic services an

cilities fro# the national )overn#ent a)encies %N"As&oncerned to the local )overn#ent units %"Ls&?

9EREAS, the Code stipulated that the transfer of basic servicnd facilities shall be acco#panied b8 the transfer of the natioersonnel concerned and assets to ensure continuit8 in theeliver8 of such services and facilities?

9EREAS, responsive rules and re)ulations are needed to aee re6uired transfer of national personnel concerned and asse the "Ls. Gunderscores, italics and e#phases oursH

hus, para)raph , section *%a& of E -/ cannot appl8 toon4ales, a provincial ad#inistrator. As e:plained earlier, the:istence of the provincial ad#inistrator position 'as arero)ative of the San))unian Panlala'i)an, and 'as not even

andator8 public o=ce under the old "C. It is clearl8 not aational )overn#ent position 'hose functions are to be devolv the local )overn#ents.

he dissentin) opinion, on the other hand, ar)ues that E -/oes not appl8 to national )overn#ent e#plo8ees onl8. Accord the dissent, the phrase Jand for related purposesJ in E -/

tle could enco#pass personnel not necessaril8 e#plo8ed b8ational )overn#ent a)encies but b8 local )overn#ent units ss the ad#inistrator, the le)al o=cer and the infor#ation o=ces enu#erated in Section *%a&, para)raph thereof. @hisrovision, accordin) to the dissent, ;lls the crucial )ap left b8 R(- 'hich did not provide 'hether the ter# of an incu#bent



rovincial ad#inistrator 'ould auto#aticall8 beco#e coter#inoith that of the appointin) authorit8 upon RA 2(-5s eectivit8

his ind of construction eectivel8 adds to E -/5s ob>ect

atters that it did not e:plicitl8 provide for. @he phrase Jand fother related purposesJ can onl8 add to E -/ #atters relatede devolution of personnel, basic services and facilities to loca

overn#ent units. @he i#pact of the chan)e in a localovern#ent position5s nature is clearl8 dierent fro# the

#ple#entation of devolution and its ancillar8 eectsF the for#volves a chan)e in a local )overn#ent position5s functions an

oncept of tenure, 'hile the latter involves %a#on) other thin)e transfer of national )overn#ent e#plo8ees to local

overn#ent units. @his dierence is hi)hli)hted b8 the fact tha -/, as reected b8 its 'hereas clauses, 'as issued to

#ple#ent Section (2 of RA 2(-. In contrast, the chan)e in thature of the provincial ad#inistrator position #a8 be )leanedo# Section 3- of RA 2(-. 9ence, b8 no stretch of reasonab

onstruction can the phrase Jand for other related purposesJ in -/5s title be understood to enco#pass the conse6uences oe chan)e in the local )overn#ent position5s nature.

urther#ore, construin) that the ad#inistrator position in Secta&, para)raph pertains to cit8, #unicipal and<or provincial

d#inistrators 'ould result in a le)al in;r#it8. E -/ 'as issuursuant to the President5s ordinance po'ers to provide for rul

at are )eneral or per#anent in character for the purpose of#ple#entin) the President5s constitutional or statutor8 po'er:ercisin) her constitutional dut8 to ensure that all la's areithfull8 e:ecuted, then President Cora4on A6uino issued E ensure the e:ecutive5s co#pliance 'ith para)raph %i&, Sectio



2 of RA 2(-, 'hich re6uires local )overn#ent units to absorbe personnel of national a)encies 'hose functions shall be

evolved to the#.3* @his is reected in E -/5s title and 'here

auses, and its li#ited application as discussed earlier.hus, the dissentin) opinion5s interpretation 'ould result in thedicial reco)nition of an act of the E:ecutive usurpin) a)islative po'er. @he )rant of per#anent status to incu#bentrovincial ad#inistrators, despite the clear lan)ua)e and intenA 2(- to #ae the position coter#inous, is an act outside thresident5s le)iti#ate po'ers. @he po'er to create, abolish and

odif8 public o=ces is lod)ed 'ith Con)ress.3/ @he Presidentannot, throu)h an E:ecutive rder, )rant per#anent status tocu#bents, 'hen Con)ress b8 la' has declared that theositions the8 occup8 are no' con;dential. Such act 'ould#ount to the President5s a#end#ent of an act of Con)ress K act that the Constitution prohibits. Allo'in) this ind ofterpretation violates the separation of po'ers, a constitutiona

nshrined principle that the Court has the dut8 to uphold.33

he dissent counters this ar)u#ent b8 pointin) out that Sectioa&, para)raph of E -/ en>o8s the le)al presu#ption of

alidit8. Lnless the la' or rule is annulled in a direct proceedin)e le)al presu#ption of its validit8 stands. @he E5s validit8,

o'ever, is not in 6uestion in the present case. !hat is at issueproper interpretation of its application )ivin) due respect to t

rinciple of separation of po'ers, and the dissentin) opinion5sterpretation does violence to this principle.

on4ales has securit8 of tenure, but onl8 as a pri#aril8on;dential e#plo8ee



o be sure, both career and non0career service e#plo8ees have)ht to securit8 of tenure.1âwphi1 All per#anent o=cers and#plo8ees in the civil service, re)ardless of 'hether the8 belon

the career or non0career service cate)or8, are entitled to thiuarant8? the8 cannot be re#oved fro# o=ce e:cept for causerovided b8 la' and after procedural due process.3 @he concef securit8 of tenure, ho'ever, labors under a variation forri#aril8 con;dential e#plo8ees due to the basic concept of apri#aril8 con;dentialJ position. Servin) at the con;dence of thppointin) authorit8, the pri#aril8 con;dential e#plo8ee5s ter#f o=ce e:pires 'hen the appointin) authorit8 loses trust in th#plo8ee. !hen this happens, the con;dential e#plo8ee is noe#ovedJ or Jdis#issedJ fro# o=ce? his ter# #erel8 Je:piresnd the loss of trust and con;dence is the J>ust causeJ provide8 la' that results in the ter#ination of e#plo8#ent. In theresent case 'here the trust and con;dence has beenretrievabl8 eroded, 'e cannot fault "overnor Pi#entel5s e:ercf discretion 'hen he decided that he could no lon)er entrust h

on;dence in "on4ales.

ecurit8 of tenure in public o=ce si#pl8 #eans that a public=cer or e#plo8ee shall not be suspended or dis#issed e:cepr cause, as provided b8 la' and after due process. It cannot b

:panded to )rant a ri)ht to public o=ce despite a chan)e in tature of the o=ce held. In other 'ords, the CSC #i)ht haveeen le)all8 correct 'hen it ruled that the petitioner violatedon4ales5 ri)ht to securit8 of tenure 'hen she 'as re#ovedithout su=cient >ust cause fro# her position, but the situationad since then been chan)ed. In fact, "on4ales 'as reinstatedrdered, but her services 'ere subse6uentl8 ter#inated undere la' prevailin) at the ti#e of the ter#ination of her service?



e., she 'as then alread8 occup8in) a position that 'as pri#aron;dential and had to be dis#issed because she no lon)ern>o8ed the trust and con;dence of the appointin) authorit8.

hus, "on4ales5 ter#ination for lac of con;dence 'as la'ful. Sould no lon)er be reinstated as provincial ad#inistrator ofa#arines Norte or to an8 other co#parable position. @hisonclusion, ho'ever, is 'ithout pre>udice to "on4ales5ntitle#ent to retire#ent bene;ts, leave credits, and future#plo8#ent in )overn#ent service.

9ERE7RE, all pre#ises considered, 'e hereb8 "RAN@ the

etition, and REERSE and SE@ ASIDE the Decision dated +une -- and the Resolution dated Dece#ber *, *-- of the Court ppeals in CA".R. SP No. 123*.

RDERED.

RTURO -. +RIONssociate +ustice

E CNCLRF

I >oin +. Del CastilloMARIA OUR-ES P. A. SERENO

Chief +ustice

ANTONIO T. CARPIOAssociate +ustice

I >oin the opinion of +.M. Del

CastilloPRES+ITERO J. VEASCO,

JR.Associate +ustice



TERESITA J. EONAR-O-E CASTRO

Associate +ustice

-IOS-A-O M. PERATAAssociate +ustice

UCAS P. +ERSAMINAssociate +ustice

Please see concurrin) anddissentin) opinion.MARIANO C. -E

CASTIOAssociate +ustice

I >oin the concurrin) and

dissentin) opinion of +. DelCastillo

RO+ERTO A. A+A-Associate +ustice

MARTIN S. VIARAMA, JR.

Associate +ustice

JOSE PORTUGA PEREAssociate +ustice

JOSE CATRA MEN-OAAssociate +ustice

+IENVENI-O . RE*ESAssociate +ustice

ESTEA M. PERAS+ERNA+E

Associate +ustice

MARVIC MARIO VICTOR !. EONENAssociate +ustice

C E R @ I 7 I C A @ I N

ursuant to Section (/, Article III of the Constitution, I certif8at the conclusions in the above Decision had been reached in

onsultation before the case 'as assi)ned to the 'riter of thepinion of the Court.



ARIA OUR-ES P. A. SERENOhief +ustice

oo'&o'#%

( Rollo, pp. (0*2? under Rule 3 of the Rule of Court.

* Id. at /*033? penned b8 Associate +ustice Marlene "on4aleSison, and concurred in b8 Associate +ustices A#elita ". @olentino and ucenito N. @a)le.

/ Id. at -0(.3 Id. at /*0//.

Id. at 10.

Id. at 022.

2 Id. at //.

Id. at 20(.

1 Id. at /03.

(- Re8es, Car#encita ., ReF Appoint#ent? ProvincialAd#inistrator.

((

Rollo, pp. 0.(* Id. at 1-.

(/ Id. at 1-012.



(3 Id. at /*033.

( ".R. No. 1*3-/, April **, (11*, *- SCRA *3-.

( SEC@IN 3. DisciplineF "eneral Provisions. %a& No o=cor e#plo8ee in the Civil Service shall be suspended ordis#issed e:cept for cause as provided b8 la' and after duprocess.

%b& @he follo'in) shall be )rounds for disciplinar8 actio

%(& Dishonest8?

%*& ppression?

%/& Ne)lect of dut8?

%3& Misconduct?

%& Dis)raceful and i##oral conduct?

%& Bein) notoriousl8 undesirable?

%2& Discourtes8 in the course of o=cial duties?

%& Ine=cienc8 and inco#petence in the perfor#anof o=cial duties?

%1& Receivin) for personal use of a fee, )ift or other

valuable thin) in the course of o=cial duties or inconnection there'ith 'hen such fee, )ift, or othervaluable thin) is )iven b8 an8 person in the hope oe:pectation of receivin) a favor or better treat#enthan that accorded other persons, or co##ittin) ac



punishable under the anti0)raft la's?

%(-& Conviction of a cri#e involvin) #oral turpitude

%((& I#proper or unauthori4ed solicitation ofcontributions fro# subordinate e#plo8ees and b8teachers or school o=cials fro# school children?

%(*& iolation of e:istin) Civil Service a' and rulesor reasonable o=ce re)ulations?

%(/& 7alsi;cation of o=cial docu#ent?

%(3& 7re6uent unauthori4ed absences or tardiness ireportin) for dut8, loa;n) or fre6uent unauthori4edabsences fro# dut8 durin) re)ular o=ce hours?

%(& 9abitual drunenness?

%(& "a#blin) prohibited b8 la'?

%(2& Refusal to perfor# o=cial dut8 or renderoverti#e service?

%(& Dis)raceful, i##oral or dishonest conduct prioto enterin) the service?

%(1& Ph8sical or #ental incapacit8 or disabilit8 due i##oral or vicious habits?

%*-& Borro'in) #one8 b8 superior o=cers fro#subordinates or lendin) b8 subordinates to superioo=cers?



%*(& endin) #one8 at usurious rates of interest?

%**& !illful failure to pa8 >ust debts or 'illful failurepa8 ta:es due to the )overn#ent?

%*/& Contractin) loans of #one8 or other propert8fro# persons 'ith 'ho# the o=ce of the e#plo8eeconcerned has business relations?

%*3& Pursuit of private business, vocation orprofession 'ithout the per#ission re6uired b8 CivilService rules and re)ulations?

%*& Insubordination?

%*& En)a)in) directl8 or indirectl8 in partisan politactivities b8 one holdin) a non0political o=ce?

%*2& Conduct pre>udicial to the best interest of theservice?

%*& obb8in) for personal interest or )ain inle)islative halls or o=ces 'ithout authorit8?

%*1& Pro#otin) the sale of ticets in behalf of privatenterprises that are not intended for charitable orpublic 'elfare purposes and even in the latter casethere is no prior authorit8?

%/-& Nepotis# as de;ned in Section - of this @itle

(2 Rollo, pp. 3031.



( Supra note /.

(1 Id. at (**0(/*.

*- Id. at ((0(2-.*( Section 2. Classes of Positions in the Career Service.

%a& Classes of positions in the career service appoint#eto 'hich re6uires e:a#inations shall be )rouped intothree #a>or level as follo'sF

(. @he ;rst level shall include clerical, trades, craftsand custodial service positions 'hich involve non0professional or subprofessional 'or in a non0supervisor8 or supervisor8 capacit8 re6uirin) lessthan four 8ears of colle)iate studies?

*. @he second level shall include professional,technical, and scienti;c positions 'hich involve

professional, technical, or scienti;c 'or in a non0supervisor8 or supervisor8 capacit8 re6uirin) at leafour 8ears of colle)e 'or up to Division Chief leveand

/. @he third level shall cover positions in the CareeE:ecutive Service.

%b& E:cept as herein other'ise provided, entrance to th;rst t'o levels shall be throu)h co#petitivee:a#inations, 'hich shall be open to those inside andoutside the service 'ho #eet the #ini#u# 6uali;catiore6uire#ents. Entrance to a hi)her level does not re6u



previous 6uali;cation in the lo'er level. Entrance to ththird level shall be prescribed b8 the Career E:ecutiveService Board.

%c& !ithin the sa#e level, no civil service e:a#inationshall be re6uired for pro#otion to a hi)her position in oor #ore related occupational )roups. A candidate forpro#otion should, ho'ever, have previousl8 passed thee:a#ination for that level.

** ".R. No. 2(*, ctober *, (11(, *-/ SCRA (1.

*/ SEC@IN 2. Career Service.@he Career Service shall becharacteri4ed b8 %(& entrance based on #erit and ;tness tobe deter#ined as far as practicable b8 co#petitivee:a#ination, or based on hi)hl8 technical 6uali;cations? %*opportunit8 for advance#ent to hi)her career positions? an%/& securit8 of tenure.

@he Career Service shall includeF%(& pen Career positions for appoint#ent to 'hich pri6uali;cation in an appropriate e:a#ination is re6uired?

%*& Closed Career positions 'hich are scienti;c, or hi)htechnical in nature? these include the facult8 andacade#ic sta of state colle)es and universities, and

scienti;c and technical positions in scienti;c or researcinstitutions 'hich shall establish and #aintain their o'#erit s8ste#s?

%/& Positions in the Career E:ecutive Service? na#el8,Lndersecretar8, Assistant Secretar8, Bureau Director,



Assistant Bureau Director, Re)ional Director, AssistantRe)ional Director, Chief of Depart#ent Service and otho=cers of e6uivalent ran as #a8 be identi;ed b8 the

Career E:ecutive Service Board, all of 'ho# areappointed b8 the President?

%3& Career o=cers, other than those in the CareerE:ecutive Service, 'ho are appointed b8 the President,such as the 7orei)n Service =cers in the Depart#ent7orei)n Aairs?

%& Co##issioned o=cers and enlisted #en of the Ar#7orces 'hich shall #aintain a separate #erit s8ste#?

%& Personnel of )overn#ent0o'ned or controlledcorporations, 'hether perfor#in) )overn#ental orproprietar8 functions, 'ho do not fall under the non0career service? and

%2& Per#anent laborers, 'hether silled, se#i0silled, ounsilled.

*3 Section (11. =cials of the Provincial "overn#ent. 0

%(& @here shall be in each province a )overnor, a vice0)overnor, #e#bers of the san))unian) panlala'i)an, provincial secretar8, a provincial treasurer, a provincial

assessor, a provincial bud)et o=cer, a provincialen)ineer, a provincial a)riculturist and a provincialplannin) and develop#ent coordinator.

* Section (11. : : :



: : : :

%/& @he san))unian) panlala'i)an #a8 #aintain e:istio=ces not #entioned in para)raph

%(& of GthisH section, or create such other o=ces as #a8be necessar8 to carr8 out the purposes of the provincia)overn#ent, or #a8 consolidate the functions of an8 oof such o=ces 'ith those of another in the interest ofe=cienc8 and econo#8.

* Section 3/. =cials of the Provincial "overn#ent.

%a& @here shall be in each province a )overnor, a vice0)overnor, #e#bers of the san))unian) panlala'i)an, secretar8 to the san))unian) panlala'i)an, a provinciatreasurer, a provincial assessor, : : : a provincialplannin) and develop#ent coordinator, a provincial le)o=cer, a provincial ad#inistrator. Gitalics and e#phasis

oursH*2 Section 3-. uali;cations, @er#s, Po'ers and Duties.

%a& No person shall be appointed ad#inistrator unless his a citi4en of the Philippines, a resident of the local)overn#ent unit concerned, of )ood #oral character, aholder of a colle)e de)ree preferabl8 in public

ad#inistration, la', or an8 other related course fro# areco)ni4ed colle)e or universit8, and a ;rst )rade civilservice eli)ible or its e6uivalent. 9e #ust have ac6uiree:perience in #ana)e#ent and ad#inistration 'or foleast ;ve %& 8ears in the case of the provincial or cit8



ad#inistrator, and three %/& 8ears in the case of the#unicipal ad#inistrator.

* Citin) the Manual of Position Descriptions, the Court in

aurel v. Civil Service Co##ission, supra note **, at *-3noted that the provincial ad#inistrator position has thefollo'in) re6uire#entsF

EducationF Bachelor$s de)ree preferabl8 in a'<Public oBusiness Ad#inistration.

E:perienceF Si: 8ears of pro)ressivel8 responsiblee:perience in plannin), directin) and ad#inistration ofprovincial )overn#ent operations. E:perience in privata)encies considered are those that have been #ore orless fa#iliar level of ad#inistrative pro;cienc8.

Eli)ibilit8F RA (-- %BAR&<Personnel Mana)e#ent=cer<Career Service %Professional&<7irst

"rade<Supervisor.*1 Re8es, Car#encita ., ReF Appoint#ent? ProvincialAd#inistrator.

/- Section 3-, RA 2(-? Article ((1 of the I#ple#entin)Rules and Re)ulations of RA 2(- providesF

AR@ICE ((1. Appoint#ent of Appointive ocal =cials%a& Lnless other'ise provided in this Rule, heads of o=and depart#ents in the "Ls shall be appointed b8 thelocal chief e:ecutive concerned 'ith the concurrence o#a>orit8 of all the #e#bers of the san))unian, sub>ect



civil service la's, rules and re)ulations.

%b& @he san))unian concerned shall act on theappoint#ent 'ithin ;fteen %(& da8s fro# the date of it

sub#ission? other'ise, the sa#e shall be dee#edcon;r#ed.

%c& @he ter# of o=ce of the local ad#inistrator, local leo=cer, and local infor#ation o=cer is coter#inous 'iththat of their appointin) authorit8.

/( @he creation and abolition of public o=ces are pri#aril8le)islative functions. It is acno'led)ed that Con)ress #a8abolish an8 o=ce it creates 'ithout i#pairin) the o=cer$sri)ht to continue in the position held and that such po'er#a8 be e:ercised for various reasons, such as the lac offunds or in the interest of econo#8. 9o'ever, in order for tabolition to be valid, it #ust be #ade in )ood faith, not forpolitical or personal reasons, or in order to circu#vent the

constitutional securit8 of tenure of civil service e#plo8ees%Canoni4ado v. 9on. A)uirre, /- Phil. *-, * G*---H&. Sealso @he a' on Public =cers and Election a', 9ector S.eon, p. //.

/* See Salcedo and I)nacio v. Carpio and Carreon, 1 Phil. *%(1(&? and EraOa v. er)el de Dios, Phil. (2 %(131&.

// @he a' on Public =cers and Election a', 9ector S. deeon, p. //.

/3 Supra note /*.



/ 3*3 Phil. 2-2 %*--*&.

/ ".R. No. 23*-, Septe#ber (2, (11-, (1 SCRA 2*, 2

/2 2- Phil. 1 %*--&./ Id. at ((/.

/1 Supra note /2.

3- Id. at ((/0((3? citations o#itted.

3( Section *, Chapter *, @itle I of the Ad#inistrative Code.

3* %i& @he devolution conte#plated in this Code shall includethe transfer to local )overn#ent units of the records,e6uip#ent, and other assets and personnel of nationala)encies and o=ces correspondin) to the devolved po'ersfunctions, and responsibilities.

Personnel of said national a)encies or o=ces shall beabsorbed b8 the local )overn#ent units to 'hich the8belon) or in 'hose areas the8 are assi)ned to the e:tethat it is ad#inistrativel8 viable as deter#ined b8 the soversi)ht co##itteeF Provided, @hat the ri)hts accordeto such personnel pursuant to civil service la', rules anre)ulations shall not be i#pairedF Provided, further, @hre)ional directors 'ho are career e:ecutive service

o=cers and other o=cers of si#ilar ran in the saidre)ional o=ces 'ho cannot be absorbed b8 the local)overn#ent unit shall be retained b8 the national)overn#ent, 'ithout an8 di#inution of ran, salar8 or



tenure.

3/ Canoni4ado v. 9on. A)uirre, supra note /(.

33 But in the #ain, the Constitution has bloced out 'ith destroes and in bold lines, allot#ent of po'er to the e:ecutithe le)islative and the >udicial depart#ents of the)overn#ent. @he overlappin) and interlacin) of functions aduties bet'een the several depart#ents, ho'ever,so#eti#es #aes it hard to sa8 >ust 'here the one leaves and the other be)ins. : : : In cases of conict, the >udicial

depart#ent is the onl8 constitutional or)an 'hich can becalled upon to deter#ine the proper allocation of po'ersbet'een the several depart#ents and a#on) the inte)ral oconstituent units thereof. %An)ara v. Electoral Co##ission, Phil. (/1, (2 G(1/H.&

3 +oco# v. +ud)e Re)alado, *2 Phil. /, 13 %(11(&, citin) @apales v. President and Board of Re)ents of the Lniversit8

the Philippines, ((2 Phil. ( %(1/&.3 In)les v. Mutuc, (/ Phil. (22, (* %(1&

he a'phil Pro>ect 0 Arellano a' 7oundation

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