1 Constitutional Provisions 1 - Ombudsman of the · PDF file1 Constitutional Provisions ... shall be provided by law. ... Monitor the Philippine Government’s compliance with international

CONTENTS

CHAPTER 1

Constitutional Provisions

CHAPTER 2

Executive Order 163

CHAPTER 3

Other Laws That Elaborate on CHRP Mandate

CHAPTER 4

Supreme Court Decisions

CHAPTER 5

Deliberations of the Constitutional Commission

CHAPTER 6

Paris Principles: Principles Relating to the Status of National Human Rights Institutions

1

5

9

15

35

221

1

Constitutional Provisions

“There is hereby created an independent office called The Commission on Human Rights (to) investigate, on its own or on complaint

by any party, all forms of human rights violations involving civil and political rights...”

ARTICLE XIII

HUMAN RIGHTS

SOCIAL JUSTICE AND HUMAN RIGHTS

SECTION 17

1. ThereisherebycreatedanindependentofficecalledtheCommissiononHumanRights.2. TheCommissionshallbecomposedofaChairmanandfourMemberswhomustbenatural-

borncitizensofthePhilippinesandamajorityofwhomshallbemembersoftheBar.ThetermofofficeandotherqualificationsanddisabilitiesoftheMembersoftheCommissionshallbeprovidedbylaw.

3. UntilthisCommissionisconstituted,theexistingPresidentialCommitteeonHumanRightsshallcontinuetoexerciseitspresentfunctionsandpowers.

4. TheapprovedannualappropriationsoftheCommissionshallbeautomaticallyandregularlyreleased.

SECTION 18

1. Investigate,onitsownoroncomplaintbyanyparty,all formsofhumanrightsviolationsinvolvingcivilandpoliticalrights;

2. Adoptitsoperationalguidelinesandrulesofprocedure,andciteforcontemptforviolationsthereofinaccordancewiththeRulesofCourt;

3. ProvideappropriatelegalmeasuresfortheprotectionofhumanrightsofallpersonswithinthePhilippines,aswellasFilipinos residingabroad,andprovide forpreventivemeasuresand legal aid services to the underprivileged whose human rights have been violated orneedprotection;

4. Exercisevisitorialpowersoverjails,prisons,ordetentionfacilities;5. Establishacontinuingprogramofresearch,education,andinformationtoenhancerespect

fortheprimacyofhumanrights;6. RecommendtoCongresseffectivemeasurestopromotehumanrightsandtoprovidefor

compensationtovictimsofviolationsofhumanrights,ortheirfamilies;7. MonitorthePhilippineGovernment’scompliancewith international treatyobligationson

humanrights;

The Commission on Human Rights shall have the following powers andfunctions:

2 Commission on Human Rights Resource Book

8. Grant immunity from prosecution to any person whose testimony or whose possessionofdocumentsorotherevidenceisnecessaryorconvenienttodeterminethetruthinanyinvestigationconductedbyitorunderitsauthority;

9. Requesttheassistanceofanydepartment,bureau,office,oragencyintheperformanceofitsfunctions;

10. Appointitsofficersandemployeesinaccordancewithlaw;and11. Performsuchotherdutiesandfunctionsasmaybeprovidedbylaw.

SECTION 19TheCongressmayprovideforothercasesofviolationsofhumanrightsthatshouldfallwithintheauthorityoftheCommission,takingintoaccountitsrecommendations.

3Constitutional Provisions

2

Executive Order163

DECLARING THE EFFECTIVITY OF THE CREATION OF THE COMMISSION ON HUMAN RIGHTS AS PROVIDED FOR IN THE 1987 CONSTITUTION, PROVIDING

GUIDELINES FOR THE OPERATION THEREOF, AND FOR OTHER PURPOSES.

WHEREAS,the1987Constitutionhasbeenratifiedbythepeople;

WHEREAS, the 1987 Constitution has created an independent office called the Commission on humanRights;and

WHEREAS,thereisanurgentnecessitytoconstitutetheCommissiononHumanRightstogiveeffectstotheStatepolicythat“theStatevaluesthedignityofeveryhumanpersonandguaranteesfullrespectforhumanrights.”

NOW,THEREFORE,I,CORAZONC.AQUINO,PresidentofthePhilippines,byvirtueofthepowersvestedinmebytheConstitution,doherebyorder:

SECTION 1 TheCommissiononHumanRightsasprovidedunderArticleXIIIofthe1987Constitutionisherebydeclaredtobenowinexistence.

SECTION 2 TheCommissiononHumanRightsshallbecomposedofaChairmanandfour members who must be natural-born citizens of the Philippines and,atthetimeoftheirappointment,atleastthirty-fiveyearsofage,andmust

nothavebeencandidatesforanyelectivepositionintheelectionsimmediatelyprecedingtheirappointment.However,amajoritythereofshallbemembersofthePhilippineBar.

The Chairman and the Members of the Commission on human Rights shall not, during theirtenure,holdanyotherofficeoremployment.Neithershalltheyengageinthepracticeofanyprofessionor intheactivemanagementorcontrolofanybusinesswhich inanywaymaybeaffected by the functions of their office, nor shall they be financially interested, directly orindirectly,inanycontractwith,orinanyfranchiseorprivilegegrantedbythegovernment,anyofitssub-divisions,agencies,orinstrumentalities,includinggovernment-ownedorcontrolledcorporationsortheirsubsidiaries.

TheChairmanandtheMembersoftheCommissiononHumanRightsshallbeappointedbythepresidentforatermofsevenyearswithoutreappointment.Appointmenttoanyvacancyshallbeonlyfortheunexpiredtermofthepredecessor.

TheChairmanandtheMembersoftheCommissiononHumanRightsshall receivethesamesalaryastheChairmanandtheMembersoftheCommissiononHumanRightsshallreceivethesame salary as the Chairman and Members, respectively, of the Constitutional Commissions,whichshallnotbedecreasedduringtheirtermofoffice.


SECTION 3 The Commission on Human Rights shall have the following powers andfunctions:

• Investigate,onitsownoroncomplaintbyanypartyall formsofhumanrightsviolationsinvolvingcivilandpoliticalrights;

• Adoptitsoperationalguidelinesandrulesofprocedure,andciteforcontemptforviolationsthereofinaccordancewiththerulesofCourt.

• ProvideappropriatelegalmeasuresfortheprotectionofhumanrightsofallpersonswithinthePhilippines,aswellasFilipinosresidingabroadandprovideforpreventivemeasuresandlegalaidservicestotheunder-privilegedwhosehumanrightshavebeenviolatedorneedprotection;

• Exercisevisitorialpowersoverjails,prisons,ordetentionfacilities;

• Establishacontinuingprogramofresearch,educationandinformationtoenhancerespectfortheprimacyofhumanrights;

• RecommendtotheCongresseffectivemeasurestopromotehumanrightsandtoprovideforcompensationtovictimofviolationsofhumanrights,ortheirfamilies;

• MonitorthePhilippineGovernment’scompliancewithinternationaltreatyobligationsonhumanrights;

• Grant immunity from prosecution to any person whose testimony or whose possessionofdocumentsorotherevidenceisnecessaryorconvenienttodeterminethetruthinanyinvestigationconductedbyitorunderitsauthority;

• Requesttheassistanceofanydepartment,bureau,officeoragencyintheperformanceofitsfunctions;

• Appointitsofficersandemployeesinaccordancewithlaw;and

• Performsuchotherdutiesandfunctionsasmaybeprovidedbylaw.

SECTION 4 The Presidential Committee on Human Rights, created under ExecutiveOrder no. 8 dated March 18, 1986, as modified, is hereby abolished. TheCommissiononHumanRightsshallexercisesuchfunctionsandpowersof

thePresidentialCommitteeonHumanRightsunderExecutiveOrderNo.8,asmodified,whicharenotinconsistentwiththeprovisionsofthe1987Constitution.

The unexpended appropriations of the Presidential Committee on Human Rights are herebytransferredtotheCommissiononHumanrights.Allproperties,records,equipment,buildings,facilitiesandotherassetsofthePresidentialCommitteeonHumanRightsshallbetransferredtotheCommissiononHumanRights.

7Executive Order 163

TheCommissiononHumanRightsmayretainsuchpersonnelofthePresidentialCommitteeonHumanRightseffectedunderthisExecutiveOrdershallreceivethebenefitstowhichtheymaybeentitledunderexistinglaw,rulesandregulations.

SECTION 5

SECTION 6

SECTION 7

TheapprovedannualappropriationsoftheCommissiononHumanRightsshallbeautomaticallyandregularlyreleased.

Alllaws,orders,issuances,rulesandregulationsorpartsthereofinconsistentwiththisExecutiveOrderareherebyrepealedormodifiedaccordingly.

ThisExecutiveOrdershalltakeeffectimmediately.DoneintheCityofManila,this5thdayofMay,intheyearofourLord,nineteenhundredandeighty-seven.

(Signed)CORAZON C. AQUINO PresidentofthePhilippines

BythePresident:(Sgd.)JOKER P. ARROYO ExecutiveSecretary


3

Other Laws that Elaborate on the

Mandates of CHRP

1. ON PERSONS DEPRIVED OF THEIR LIBERTY

REPUBLIC ACT No. 7438–“An Act Defining Certain Rights Of Person Arrested, Detained Or Under Custodial Investigation As Well As The Duties Of The Arresting, Detaining And Investigating Officers, And Providing Penalties For Violations Thereof”(CustodialRightsoftheAccused)

SECTION 2 (f ) Any person arrested or detained or under custodial investigation shall beallowedvisitsbyorconferenceswithanymemberofhisimmediatefamily,oranymedicaldoctororpriestorreligiousministerchosenbyhimorbyanymemberof

hisimmediatefamilyorbyhiscounsel,orbyanynationalnon-governmentalorganizationdulyaccreditedby the Commission on Human Rights or by any international non-governmental organization dulyaccreditedbytheOfficeofthePresident.Theperson’s“immediatefamily”shallincludehisorherspouse,fiancéorfiancée,parentorchild,brotherorsister,grandparentorgrandchild,uncleoraunt,nepheworniece,andguardianorward.

2. ON CHILDREN IN CONFLICT WITH THE LAW

REPUBLIC ACT NO. 9344 –“An Act Establishing A Comprehensive Juvenile Justice And Welfare System, Creating The Juvenile Justice And Welfare Council Under The Department Of Justice, Appropriating Funds Therefor And For Other Purposes” (JuvenileJusticeLaw)

Juvenile Justice and Welfare Council (JJWC). -AJuvenileJusticeandWelfareCouncil (JJWC) is hereby created and attached to the Department of Justiceand placed under its administrative supervision.The JJWC shall be chaired by

an undersecretary of the Department of Social Welfare and Development. It shall ensure the effectiveimplementationofthisActandcoordinationamongthefollowingagencies:

xxx

TheJJWCshallbecomposedofrepresentatives,whoseranksshallnotbelowerthandirector,to bedesignatedbytheconcernedheadsofthefollowingdepartmentsoragencies: xxx

(f )CommissiononHumanRights(CHR);

SECTION 8


Child Rights Center (CRC). - The existing Child Rights Center of the Commission on Human Rights shall ensure that the status, rights andinterests of children are upheld in accordance with the Constitution

and international instruments on human rights.The CHR shall strengthen the monitoring ofgovernmentcomplianceofalltreatyobligations,includingthetimelyandregularsubmissionof reports before the treaty bodies, as well as the implementation and dissemination ofrecommendationsandconclusionsbygovernmentagenciesaswellasNGOsandcivilsociety.

SECTION 11

3. ON CHILDREN IN SITUATIONS OF ARMED CONFLICT

RULES AND REGULATIONS ON CHILDREN IN SITUATIONS OF ARMED CONFLICT (PursuanttoSection32ofREPUBLICACTNO.7610–“An Act Providing For Stronger Deterrence And Special Protection Against Child Abuse, Exploitation And Discrimination, And For Other Purposes”)toimplementArticleXofsaidActconcerning“ChildreninSituationsofArmedConflict”-

SECTION 1Definition of Terms –

i. “Commission” refers to the Commission on Human Rights.

SECTION 21 Visitation of the Child.–Uponbeinginformedofthedetention/arrestofthechildbygovernmentforces,theDepartmentorthelocalrepresentativeof the Commission shall immediately visit the child to determine the

observancebythegovernmentforcesofthehumanrightsofthesuspect. xxx

SECTION 22 Reports of Violation of Rightsof Children. -Reportsofspecific incidentsofviolationsofhumanrightsofchildreninsituationsofarmedconflictshallbe filed with the Department or the Commission or non-governmental

organizations duly accredited by the Commission to monitor human rights violations. The Commissionshallforwardsaidreportstothegeneralheadquartersofthegovernmentforcesor may file the same directly with the office of the city/provincial prosecutor for appropriateaction.

SECTION 24 Release of Child on Recognizance.–Withintwentyfour(24)hoursafterthefilingofacriminalcomplaint/informationagainstthechildincourt,thelegalcounselofthechild,orinhisabsence,therepresentativeoftheDepartment

or Commission may request the appropriate Court to release the child on recognizance tothe representative of the Department or Commission or to any responsible member of thecommunitywhoshallberesponsibleforthechild’sappearanceincourt.Thechildwhoisreleasedonrecognizancemaybeplacedwitha family, inagovernmentrehabilitationcenter,or inanaccreditedwelfareagency.

11Other Laws that Elaborate on the CHRP Mandate

4. ON VIOLENCE AGAINST WOMEN AND CHILDREN

REPUBLIC ACT NO. 9262 – “An Act Defining Violence Against Women And Their Children, Providing For Protective Measures For Victims, Prescribing Penalties Therefor And For Other Purposes” (Anti-ViolenceAgainstWomenandtheirChildrenActof2004)

SECTION 39Inter-Agency Council on Violence Against Women and Their Children (IAC-VAWC). - In pursuance of the above mentioned policy, there is herebyestablished an Inter-Agency Council on Violence Against Women and

their Children, hereinafter known as the Council, which shall be composed of the followingagencies: (a)DepartmentofSocialWelfareandDevelopment(DSWD); (b)NationalCommissionontheRoleofFilipinoWomen(NCRFW); (c)CivilServiceCommission(CSC); (d)Commission on Human Rights (CHR); (e)CouncilfortheWelfareofChildren(CWC); (f )DepartmentofJustice(DOJ); (g)DepartmentoftheInteriorandLocalGovernment(DILG); (h)PhilippineNationalPolice(PNP); (i)DepartmentofHealth(DOH); (j)DepartmentofEducation(DepEd); (k)DepartmentofLaborandEmployment(DOLE);and (l)NationalBureauofInvestigation(NBI).TheseagenciesaretaskedtoformulateprogramsandprojectstoeliminateVAWbasedontheirmandatesaswellasdevelopcapabilityprogramsfortheiremployeestobecomemoresensitivetotheneedsoftheirclients.TheCouncilwillalsoserveasthemonitoringbodyasregardstoVAWinitiatives.TheCouncilmembersmaydesignatetheirdulyauthorizedrepresentativewhoshallhavearanknotlowerthatanassistantsecretaryoritsequivalent.TheserepresentativesshallattendCouncilmeetingsintheirbehalf,andshallreceiveemolumentsasmaybedeterminedbytheCouncilinaccordancewithexistingbudgetandaccountingrulesandregulations.


5. OTHER MANDATES / POWERS

A. ON APPROVAL TO DETAIN PERSONS WHO VIOLATEDTHE HUMAN SECURITY ACT

REPUBLIC ACT NO. 9372 - “An Act to Secure the State and Protect Our People From Terrorism” (Human Security Act of 2007)

SECTION 19Period of Detention in the Event of an Actual or Imminent Terrorist Attack.–Intheeventofanactualorimminentterroristattack,suspectsmaynotbedetainedmorethanthree(3)dayswithoutthewrittenapprovalofa

municipal, city, provincial or regional office of a Human Rights Commissionorjudgeofthemunicipal,regionaltrialcourt,theSandiganbayanorajusticeoftheCourtofAppealsnearesttheplaceofthearrest.IfthearrestismadeduringSaturdays,Sundays,holidaysorafterofficehours,thearrestingpoliceorlawenforcementpersonnelshallbringthepersonthusarrestedtotheresidenceofanyoftheofficialsmentionedabovethatisnearesttotheplacewheretheaccusedwasarrested.Theapprovalinwritingofanyofthesaidofficialsshallbesecuredbythepoliceorlawenforcementpersonnelconcernedwithinfive(5)daysafterthedetentionofthepersonsconcerned:Provided, however, thatwithinthreedays,afterthedetentionthesuspects,whoseconnectionwiththeterrorattackorthreatisnotestablished,shallbereleasedimmediately.

B. ON PROSECUTORIAL FUNCTIONS OF THE CHRP

REPUBLIC ACT NO. 9372-“An Act to Secure the State and Protect Our People From Terrorism” (HumanSecurityAct)

SECTION 55 Role of the Commission on Human Rights.–TheCommission on Human Rightsshallgivethehighestprioritytothe investigationandprosecutionof violations of civil and political rights of persons in relation to the

implementation of this Act, and for this purpose, the Commission shall have the concurrentjurisdictiontoprosecutepublicofficials,lawenforcers,andotherpersonswhomayhaveviolatedthecivilandpolitical rightsofpersonssuspectedof,accusedof,ordetainedfor thecrimeofterrorismorconspiracytocommitterrorism.

13Other Laws that Elaborate on the CHRP Mandate

4

Supreme Court Decisions on the

Commission on Human Rights

(1989-2004)

A. COMMISSION ON HUMAN RIGHTS EMPLOYEES’ ASSOCIATION (CHREA) Represented by its President, MARCIAL A. SANCHEZ, JR., petitioner, vs.

COMMISSION ON HUMAN RIGHTS, respondent.

G.R.No.155336.July21,2006

FACTSOn 25 November 2004, the Court promulgated its Decision in the above-entitledcase,rulinginfavorofthepetitioner.

A Motion for Reconsideration was consequently filed by the respondent to which petitionerfiledanOpposition.InitsMotion,respondentpraysinthemainthatthisCourtreconsidersitsrulingthatrespondentisnotamongtheconstitutionalbodiesclothedwithfiscalautonomy.

ISSUESWHETHERORNOTTHEREISLEGALBASISTOSUPPORTTHECONTENTIONTHATTHECHRENJOYSFISCALAUTONOMYANDTHATALTHOUGHADMITTEDLYACONSTITUTIONALCREATION,ISNONETHELESSNOTINCLUDEDINTHEGENUS

OFTHEOFFICESACCORDEDFISCALAUTONOMYBYCONSTITUTIONALORLEGISLATIVEFIAT.

WHETHERORNOTTHECHRCANVALIDLYRECLASSIFYORUPGRADEWITHOUTTHEAPPROVALOFTHEDEPARTMENTOFBUDGETANDMANAGEMENT.

RULING As already settled in the assailed Decision of this Court, the creation ofrespondent may be constitutionally mandated, but it is not, in the strictsense, a constitutional commission. Article IX of the 1987 Constitution,

plainlyentitled“ConstitutionalCommissions,”identifiesonlytheCivilServiceCommission,theCommissiononElections,andtheCommissiononAudit.ThemandateforthecreationoftherespondentisfoundinSection17ofArticleXIIIofthe1987ConstitutiononHumanRights,whichreadsthat–

Sec.17.(1) There is hereby created an independent office calledtheCommissiononHumanRights.

Thus, the respondent cannot invoke provisions under Article IX of the 1987 Constitution onconstitutional commissions for its benefit. It must be able to present constitutional and/orstatutorybasisparticularlypertainingtoittosupportitsclaimoffiscalautonomy.

The1987ConstitutionexpresslyandunambiguouslygrantsfiscalautonomyonlytotheJudiciary,theconstitutionalcommissions,andtheOfficeoftheOmbudsman.

As compared to ArticleVIII, Section 3; Article IX, Part A, Section 5; and Article XI, Section 14of the 1987 Constitution on the Judiciary, the constitutional commissions, and the Office oftheOmbudsman,respectively,ArticleXIII,Section17(4)ontheCommissionofHumanRights(CHR) evidently does not contain the first sentence on the express grant of fiscal autonomy,


andreproducesonlythesecondsentenceontheautomaticandregularreleaseofitsapprovedannualappropriations.TherespondentreliesonthestatementofthenConstitutionalCommissionerHilarioG.Davide,Jr.thatthefirstsentenceontheexpressgrantoffiscalautonomytotherespondentwasdeletedfromArticleXIII,Section17(4)ofthe1987Constitutionbecauseitwasasurplusage.Respondentposits that the second sentence, directing the automatic and regular release of its approvedannual appropriations, has the same essence as the express grant of fiscal autonomy, thusrenderingthefirstsentenceredundantandunnecessary.

ThisCourt,however,believesotherwise. ThestatementofthenConstitutionalCommissionerDavideshouldbereadinfull.Referringtothedeletionofthefirstsentenceontheexpressgrantof fiscal autonomy, he explained that the first sentence“would be a surplusage because theautonomyactually intended istheautomaticreleaseoftheseappropriations.”

After reviewing the deliberations of the ConCom on Article XIII, Section 17(4), of the 1987Constitution, in its entirety, not just bits and pieces thereof, this Court is convinced that theConComhadintendedtogranttotherespondenttheprivilegeofhavingitsapprovedannualappropriationsautomaticallyandregularlyreleased,butnothingmore.Whileitmaybeconcededthattheautomaticandregularreleaseofapprovedannualappropriationsisanaspectoffiscalautonomy,it is justoneofmanyothers. Thegrantoffiscalautonomyismoreextensivethanthemereautomaticandregularreleaseofapprovedannualappropriationsofthegovernmententity.In addition, the Constitutional Fiscal Autonomy Group (CFAG), to which respondent aversmembership,definedthe term“fiscalautonomy” in its JointResolutionNo.49,dated24July1998,asfollows–

IV. Definition of Terms:

1. Fiscal Autonomy shall mean independence or freedom regardingfinancialmattersfromoutsidecontrolandischaracterizedbyselfdirectionorselfdetermination. It does not mean mere automatic and regular release of approved appropriations toagenciesvestedwithsuchpowerinaveryrealsense,thefiscalautonomycontemplatedintheconstitutionis enjoyed even before and, with more reasons, after the release of theappropriations. Fiscal autonomy encompasses, among others, budgetpreparationandimplementation,flexibilityinfundutilizationofapprovedappropriations,useofsavingsanddispositionofreceipts.xxx(Emphasissupplied.)

WhiletheassailedDecisionandthepresentResolutionmayrenderthestatusofrespondent’smembershipinCFAGuncertain,thethenChairpersonofrespondent,AuroraP.Navarrete-Recina,dulysignedCFAGJointResolutionNo.49,andrespondentshouldbeheldboundbythedefinitionoffiscalautonomytherein.Havingagreedtosuchadefinitionoffiscalautonomy,respondenthas done a complete turn-about herein and is now contradicting itself by arguing that theautomaticandregularreleaseofitsapprovedannualappropriationsisalreadytantamounttofiscalautonomy.

17Supreme Court Decisions on the Commission of Human Rights

RespondentassertsthatitisgrantedfiscalautonomybyBookVI,Chapter1,Section1,paragraph9,oftheAdministrativeCodeof1987.However,as itstitlesuggests(Constitutional Policies on the Budget),theaforecitedprovisionissupposedtomerelyre-statethepoliciesonbudgetasdeclaredbythe1987Constitutionand,therefore,cannotgrantorextendtotherespondentaprivilegenotfoundinthe1987Constitution.

To reiterate, under the Constitution, as well as the Administrative Code of 1987, respondentenjoys fiscal autonomy only to the extent that its approved annual appropriations shall beautomaticallyandregularlyreleased,butnothingmore.

OnthemainissueofwhetherornottheapprovalbytheDepartmentofBudgetandManagement(DBM)isaconditionprecedenttotheenactmentofanupgrading,reclassification,creationandcollapsingofplantillapositionsintheCHR,thisCourtstaunchlyholdsthattheimprimaturoftheDBMmustfirstbesoughtpriortoimplementationofanyreclassificationorupgradingofpositionsingovernment.

Regardlessofwhetherornotrespondentenjoysfiscalautonomy,thisCourtsharesthestanceoftheDBMthatthegrantoffiscalautonomynotwithstanding,ALLgovernmentofficesmust,allthesame,kowtowtotheSalaryStandardizationLaw.ThisCourtisofthesamemindwiththeDBMonitsstandpoint,thus–

Beingamemberofthefiscalautonomygroupdoesnotvesttheagencywith the authority to reclassify, upgrade, and create positions withoutapprovaloftheDBM.WhilethemembersoftheGroupareauthorizedtoformulateandimplementtheorganizationalstructuresoftheirrespectiveofficesanddeterminethecompensationoftheirpersonnel,suchauthorityisnotabsoluteandmustbeexercisedwithintheparametersoftheUnifiedPositionClassificationandCompensationSystemestablishedunderRA6758morepopularlyknownastheCompensationStandardizationLaw.xxx(Emphasissupplied).

If the Judiciary, a co-equal branch of government, which was expressly granted by theConstitutionwithfiscalautonomy,isrequiredtoconformtotheSalaryStandardizationLawandissubjecttothescrutinyoftheDBM,sagaciously,therespondentcannotbedeemedtoenjoyabetterpositionthantheJudiciary.Therespondentmust,likewise,toetheline.

In line with its role to breathe life into the policy behind the Salary Standardization Law of“providingequalpayforsubstantiallyequalworkandtobasedifferencesinpayuponsubstantivedifferencesindutiesandresponsibilities,andqualificationrequirementsofthepositions,”theDBM, in the case under review, made a determination, after a thorough evaluation, that thereclassificationandupgradingschemeproposedbytherespondentlackslegalrationalization.

TheDBMexpoundedthatSection78oftheGeneralProvisionsoftheGeneralAppropriationsAct(GAA),FY1998,whichtherespondentheavilyreliesupontojustifyitsreclassificationscheme,explicitly provides that“no organizational unit or changes in key positions shall be authorized unless provided by law or directed by the President.”Here,theDBMdiscernedthatthere is no law authorizing the creation of a Finance Management Office and a Public Affairs Office in the


CHR. Anentrespondent’sproposal to upgrade twelve (12) positions of Attorney VI, SG-28 (sic, 26) to Director IV, SG-28,andthree(3)positionsofDirectorIII,SG-27toDirectorIV,SG-28,initsCentralOffice,theDBMdeniedthesameasthiswouldchangethecontextfromsupporttosubstantivewithoutactualchangeinfunctions.Asthefinalthrust,respondentisprecludedfrominvokingtheSpecialProvisionsApplicabletoAllConstitutionalOfficesEnjoyingFiscalAutonomyinthe1998GAA.TheSpecialProvisionsofthe1998GAArefertothebroadandextensiveconceptoffiscalautonomy.Theyalreadygobeyondensuringtheautomaticandregularreleaseoftheapprovedannualappropriations,butalreadyenumeratethewaysbywhichthenamedgovernmententitiescanusetheirappropriationstoeffectchanges in theirorganizationalstructureandtheir savings forcertainofficialpurposes.EvenassumingarguendothatthesaidSpecialProvisionsareapplicabletorespondent,itshouldbe noted that the last sentence in paragraph 1 qualifies the power of a fiscally autonomousgovernmententitytoformulateandimplementchangesinitsorganizationalstructuresothat,“xxxtheimplementationhereofshallbeinaccordancewithsalaryrates,allowancesandotherbenefitsauthorizedundercompensationstandardizationlaws.”And,asexhaustivelyexpoundedin the assailed Decision and the herein Resolution, only the DBM has the authority and thetechnical expertise to determine compliance by respondent to the provisions of the SalaryStandardizationLaw.

WHEREFORE, the Motion for Reconsideration is PARTIALLY GRANTED. The assailed Decision of this Court dated 25 November 2004 is hereby MODIFIED, declaring the respondent CHR as a constitutional body enjoying limitedfiscalautonomy, in the sense that it is entitled to the automatic and regular release of its approved annual appropriations; nonetheless, it is still required to conform to the Salary Standardization Law. Accordingly, its entire reclassification scheme remains subject to the approval of the DBM.

B. COMMISSION ON HUMAN RIGHTS EMPLOYEES’ ASSOCIATION (CHREA) Represented by its President, MARCIAL A. SANCHEZ, JR., petitioner, vs.

COMMISSION ON HUMAN RIGHTS, respondent.G.R.No.155336.November25,2004.

FACTSOnFebruary1998,CongresspassedRepublicActNo.8552,otherwiseknownastheGeneralAppropriationsActof1998.ItprovidedforSpecialProvisionsApplicable toAllConstitutionalOfficesEnjoyingFiscalAutonomy.The last

portionofArticleXXIIIcoverstheappropriationsoftheCHR.

On the strength of these special provisions, the CHR, through its then Chairperson Aurora P.Navarette-RecinaandCommissionersNasserA.Marohomasalic,MercedesV.Contreras,VicenteP.Sibulo,andJorgeR.Coquia,promulgatedResolutionNo.A98-047on04September1998,adoptinganupgradingandreclassificationschemeamongselectedpositionsintheCommission.

Annexed to the said resolution is the proposed creation of ten additional plantilla positions,namely: one Director IV position, with Salary Grade 28 for the Caraga Regional Office, four


SecurityOfficerIIwithSalaryGrade15,andfiveProcessServerswithSalaryGrade5undertheOfficeoftheCommissioners.

On 19 October 1998, CHR issued Resolution No. A98-055 providing for the upgrading orraisingofsalarygradesandalsothecreationandupgradingofthefollowingpositions intheCommission.

Tosupporttheimplementationofsuchscheme,theCHR,inthesameresolution,authorizedtheaugmentationofacommensurateamountgeneratedfromsavingsunderPersonnelServices.

ByvirtueofResolutionNo.A98-062dated17November1998,theCHR“collapsed”thevacantpositions in the body to provide additional source of funding for said staffing modification.Amongthepositionscollapsedwere:oneAttorney III, fourAttorney IV,oneChemist III, threeSpecialInvestigatorI,oneClerkIII,andoneAccountingClerkII.

TheCHRforwardedsaidstaffingmodificationandupgradingschemetotheDBMwitharequestforitsapproval,butthethenDBMSecretaryBenjaminDioknodeniedtherequest.

In light of the DBM’s disapproval of the proposed personnel modification scheme, the CSC-NationalCapitalRegionOffice,throughamemorandumdated29March1999,recommendedtotheCSC-CentralOfficethatthesubjectappointmentsberejectedowingtotheDBM’sdisapprovaloftheplantillareclassification.

Meanwhile,theofficersofpetitionerCHREA,inrepresentationoftherank-and-fileemployeesoftheCHR,requestedtheCSC-CentralofficetoaffirmtherecommendationoftheCSC-RegionalOffice.CHREAstooditsgroundinsayingthatDBMistheonlyagencywithappropriateauthoritymandatedbylawtoevaluateandapprovemattersofreclassificationandupgrading,aswellascreationofpositions.

TheCSC-CentralofficedeniedCHREA’s request inaResolutiondated16December1999,andreversed the recommendation of the CSC-Regional Office that the upgrading scheme becensured.

CHREAfiledamotionforreconsideration,buttheCSC-CentralOfficedeniedthesameon09June2000.

GiventhecacophonyofjudgmentsbetweentheDBMandtheCSC,petitionerCHREAelevatedthemattertotheCourtofAppeals.TheCourtofAppealsaffirmedthepronouncementoftheCSC-CentralOfficeandupheldthevalidityoftheupgrading,retitling,andreclassificationschemeintheCHRonthejustificationthatsuchactioniswithintheambitofCHR’sfiscalautonomy.

Unperturbed,petitionerfiledthispetitiontotheSupremeCourt.

ISSUE WHETHER OR NOT THE COMMISSION ON HUMAN RIGHTS CAN VALIDLYIMPLEMENT AN UPGRADING, RECLASSIFICATION, CREATION, ANDCOLLAPSINGOFPLANTILLAPOSITIONSINTHECOMMISSIONWITHOUTTHE

APPROVALOFTHEDEPARTMENTOFBUDGETANDMANAGEMENT.


RULINGPETITIONISGRANTED.

RepublicActNo.6758,entitledAn Act Prescribing a Revised Compensation and Position Classification System in the Government and for Other Purposes, or the Salary Standardization Law, dated 01July1989,whichprovidesinSection2and4thereofthatitistheDBMthatshallestablishandadministeraunifiedCompensationandPositionClassificationSystem.Thus:

Sec. 2. Statement of Policy. - It is hereby declared the policy of the State to provide equal pay for substantially equal work and to base differences in duties and responsibilities, and qualification requirements of the positions. In determining rates of pay, due regard shall be given to, among others, prevailing rates in the private sector for comparable work. For this purpose, the Department of Budget and Management (DBM) is hereby directed to establish and administer a unified Compensation and Position Classification System, hereinafter referred to as the System as provided for in Presidential Decree No. 985, as amended, that shall be applied for all government entities, as mandated by the Constitution.(emphasis supplied )

Sec.4. Coverage. - The Compensation and Position Classification System herein provided shall apply to all positions, appointive or elective, on full or part-time basis, now existing or hereafter created in the government, including government-owned or controlled corporations and government financial institutions. The term “government” refers to the Executive, the Legislative and the Judicial Branches and the Constitutional Commissions and shall include all, but shall not be limited to, departments, bureaus, offices, boards, commissions, courts, tribunals, councils, authorities, administrations, centers, institutes, state colleges and universities, local government units, and the armed forces. The term “government-owned and controlled corporations and financial institutions” shall include all corporations and financial institutions owned or controlled by the National Government, whether such corporations and financial institutions perform governmental or proprietary functions. (emphasis supplied ).

The disputation of the Court of Appeals that the CHR is exempt from the long arm of theSalaryStandardizationLawisflawedconsideringthatthecoveragethereof,asdefinedabove,encompassestheentiregamutofgovernmentoffices,sans qualification.

Thepowerto‘administer’isnotpurelyministerialincharacteraserroneouslyheldbytheCourtofAppeals.Theword to administermeans to control or regulate in behalf of others; to direct or superintend the execution, application or conduct of; and to manage or conduct public affairs, as to administer the government of the state.TheregulatorypoweroftheDBMonmattersofcompensationisencryptednotonlyinlaw,butinjurisprudenceaswell.Asmeasuredbytheforegoinglegalandjurisprudentialyardsticks,theimprimaturoftheDBMmustfirstbesoughtpriortoimplementationofanyreclassificationorupgradingofpositionsingovernment.ThisisconsonanttothemandateoftheDBMundertheRevisedAdministrativeCodeof1987,Section3ChapterI,TitleXVII,towit:


“Sec.3. Powers and Functions.- The Department of Budget and Management shall assist the president in the preparation of a national resources and expenditures budget, preparation, execution and control of the National Budget, preparation and maintenance of accounting systems essential to the budgetary process, achievement of more economy and efficiency in the management of government operations, administration of compensation and position classification systems, assessment of organizational effectiveness and review and evaluation of legislative proposals having budgetary or organizational implications.”

Notably,theCHRitselfrecognizestheauthorityoftheDBMtodenyorapprovetheproposedreclassification of position as evidenced by its three letters to the DBM requesting approvalthereof.Assuch,itisnowestoppedfromnowclaimingthatthenodofapprovalithaspreviouslysoughtfromtheDBMisasuperfluity.

TheCourtofAppealsincorrectlyreliedonthepronouncementoftheCSC-CentralOfficethattheCHRisaconstitutional commission,andassuchenjoysfiscalautonomy.

From the 1987 Constitution and the Administrative Code, it is abundantly clear that the CHRisnotamongtheclassofconstitutionalcommissions.Asexpressedintheoftrepeatedmaximexpressio unius est exclusion alterius,theexpressmentionofoneperson,thing,actorconsequenceexcludesallothers.Statedotherwise,expressium facit cessare tacitum-whatisexpressedputsanendtowhatisimplied.

Neither does the fact that the CHR was admitted as a member by the Constitutional FiscalAutonomy Group (CFAG) ipso facto clothed it with fiscal autonomy. Fiscal autonomy is aconstitutionalgrant,notatagobtainablebymembership.

Themostlucidargumentagainstthestandofrespondent,however,istheprovisionofRep.ActNo.8552“ that the implementation hereof shall be in accordance with salary rates, allowances and other benefits authorized under compensation standardization laws.”

Indeed,thelawuponwhichrespondentheavilyanchorsitscaseuponhasexpresslyprovidedthatanyformofadjustmentintheorganizationalstructuremustbewithintheparametersoftheSalaryStandardizationLaws.

C. BRIGIDO R. SIMON, JR., CARLOS QUIMPO, CARLITO ABELARDO, AND GENEROSO OCAMPO, petitioners, vs. COMMISSION ON HUMAN RIGHTS,

ROQUE FERMO, AND OTHERS AS JOHN DOES, respondents.G.R.No.100150.January5,1994

FACTS A“Demolition Notice”, dated 9 July 1990, signed by Carlos Quimpo in hiscapacity as an Executive Office of the Quezon City Integrated HawkersManagementCouncilundertheOfficeoftheCityMayor,wassentto,and

receivedby,theprivaterespondents(beingtheofficersandmembersoftheNorthEDSAVendorsAssociation,Incorporated).Insaidnotice,therespondentsweregivenagraceperiodofthree(3)


dayswithinwhichtovacatethequestionedpremisesofNorthEDSA.

On12July1990,thegroupledbytheirPresidentRoqueFermo,filedalettercomplaintwiththeCHRagainst,thepetitionersaskingthelateCHRChairmanMaryConcepcionBautistaforalettertobeaddressedtothethenMayorBrigidoSimonJr.,ofQuezonCitytostopthedemolitionoftheprivaterespondents’stalls,sari-saristores,andcarinderiaalongNorthEDSA.

On23July1990,theCHRissuedanorder,directingthepetitioners“todesistfromdemolishingthestallsandshantiesatNorthEDSApendingresolutionof thevendors/squatters’complaintbeforetheCommission“andorderingsaidpetitionerstoappearbeforetheCHR.

TheCHRsubsequently,initsresolutionof1August1990,orderedthedisbursementoffinancialassistance of not more than P200,000.00 in favor of the private respondents to purchaselight housing materials and food under the Commission’s supervision and again directed thepetitionersto“desistfromfurtherdemolition,withthewarningthatviolationofsaidorderwouldleadtoacitationforcontemptandarrest.

Amotiontodismiss,dated10September1990,questionedCHR’sjurisdictionwhichwasfollowedsubsequentlybyaSupplementalMotiontoDismiss.

Inanorder,dated25September1990,theCHRcitedthepetitionersforcontemptforcarryingoutthedemolitionofthestalls,sari-saristoresandcarinderiadespitethe“ordertodesist,”anditimposedafineofP500.00oneachofthem.

On 1 March 1991, the CHR issued an Order, denying petitioners’ motion to dismiss andsupplementalmotiontodismiss.

TheCHRopinedthat“itwasnottheintentionofthe(Constitutional)Commissiontocreateonlyapapertigerlimitedonlytoinvestigatingcivilandpoliticalrights,butit(should)be(considered)aquasi-judicialbodywiththepowertoprovideappropriatelegalmeasuresfortheprotectionofhumanrightsofallpersonswithinthePhilippines.”

Petitionersmotionforreconsiderationwasdenied.Hencethispetition.

ISSUE WHETHER OR NOTTHE COMMISSION ON HUMAN RIGHTS HAS JURISDICTIONOVERTHEALLEGEDVIOLATIONOFRIGHTS.

RULING THEPETITIONHASMERIT.

Now written as Sec.18, Article XIII, of the 1987 Constitution, is a provisionempoweringtheCommissiononHumanRightsto“investigate,onitsownoroncomplaintbyanyparty,allformsofhumanrightsviolationsinvolvingcivil and political rights”(Sec.1).RecallingthedeliberationsoftheConstitutionalCommissions,aforequoted,itisreadilyapparentthatthedelegatesenvisionedaCommissiononHumanRightsthatwouldfocusitsattentiontothemoreseverecasesofhumanrightsviolations.Whiletheenumerationhasnot likelybeen


meant to have any preclusive effect, more than just expressing a statement of priority, it isnonetheless,significantforthetoneithasset.Inanyevent,thedelegatesdidnotapparentlytakecomfort inperemptorilymakingaconclusivedelineationoftheCHR’sscopeof investigatorialjurisdiction.Theyhavethusseenfittoresolve,instead,that“CongressmayprovideforothercasesofviolationsofhumanrightsthatshouldfallwithintheauthorityoftheCommission,takingintoaccountitsrecommendation.”

In,theparticularcaseathand,thereisnocavilthatwhataresoughttobedemolishedarethestalls,sari-saristoresand carinderia,aswellastemporaryshanties,erectedbyprivaterespondentsonalandwhichisplannedtobedevelopedintoa“People’sPark.”Morethanthat,thelandadjoinstheNorthEDSAofQuezonCitywhich,thisCourtcantakejudicialnoticeof,isabusynationalhighway.The consequent danger to life and limb is not likewise simply ignored. It is indeedparadoxicalthatarightwhichisclaimedtohavebeenviolatedisonethatcannot, inthefirstplace,evenbeinvoked,ifitisnot,infact,extant.TheCourtwasnotpreparedtoconcludethattheorderforthedemolitionofthestalls,sari-saristoresandcarinderia oftheprivaterespondentscanfallwithinthecompartmentof”humanrightsviolationsinvolvingcivilandpoliticalrights”intendedbytheConstitution.

On its contempt powers, the CHR is constitutionally authorized to “adopt its operationalguidelinesandrulesofprocedure,andcitecontemptforviolationsthereofinaccordancewiththe Rules of Court.” Accordingly, the CHR acted within its authority in providing in its revisedrules, its power“to cite or hold any person in direct or indirect contempt, and to impose theappropriate penalties in accordance with the Rules of Court.” That power to cite contempt,however,shouldbeunderstoodtoapplyonlytoviolationsofitsadoptedoperationalguidelinesandrulesofprocedureessentialtocarryoutitsinvestigatorialpowers.Toexemplify,thepowertociteforcontemptcouldbeexercisedagainstanypersonwhorefusetocooperatewiththesaidbody,orwhoundulywithholdrelevantinformation,orwhodeclinetohonorsummons,andthelike,inpursuingitsinvestigativework.The“ordertodesist”(asemanticinterplayforarestrainingorder)intheinstancebeforeus,however,isnotinvestigatorialincharacterbutprescindsfromadjudicativepowerthatitdoesnotpossess.

The CHR does have a legal standing to indorse, for appropriate action, its findings andrecommendationstoanyappropriateagencyorgovernment.

D. EXPORT PROCESSING ZONE AUTHORITY, petitioner, vs. THE COMMISSION ON HUMAN RIGHTS, TERESITA VALLES, LORETO ALEDIA and

PEDRO ORDOÑEZ, respondents.G.R.NO.101476.April14,1992

FACTSOn May 30, 1980, P.D. 1980 was issued reserving and designating certainparcels of land in Rosario and GeneralTrias, Cavite, as the“Cavite ExportProcessingZone”(CEPZ).Forpurposesofdevelopment,theareawasdivided

intoPhaseItoIV.AparcelinPhaseIVwasboughtbytheFiloilRefineryCorporation,formerly


FiloilIndustrialEstate,Inc.ThesameparcelwaslatersoldbyFiloiltotheExportProcessingZoneAuthority(EPZA).Before EPZA could take possession of the area, several individuals had entered the premisesandplantedagriculturalproductsthereinwithoutthepermissionfromEPZAoritspredecessor,Filoil.Toconvincetheintruderstodepartpeacefully,EPZA,in1981,paidaP10,000.00financialassistancetothosewhoacceptedthesameandsignedquitclaims.AmongthemwereTeresitaVallesandAlfredoAledia,fatheroftherespondentLoretoAledia.

Tenyears later,onMay10,1991,respondentsVallesandAlediafiledintherespondentCHRajoint complaint praying for “justice and other reliefs and remedies”. The CHR conducted aninvestigationofthecomplaint.

According to the CHR, the private respondents, who are farmers, filed in the Commission onMay10,1991averifiedcomplaintforviolationoftheirhumanrights.TheyallegedthatonMarch20,1991,at10:00o’clockinthemorning,EngineerNeronDamandamon,EPZAProjectEngineer,accompaniedbyhissubordinatesandmembersofhe215thPNPCompany,broughtabulldozerandacranetoleveltheareaoccupiedtheprivaterespondentswhotriedtostopthembyshowingacopyoftheletterfromtheOfficeofthePresidentofthePhilippinesorderingthepostponementofthebulldozing.However,theletterwascrumpledandthrowntothegroundbyamemberofDamondamon’sgroupwhoproclaimedthat:“ThePresidentinCaviteisGovenorRemulla!”On May 17, 1991, the CHR issued an Order of Injunction commanding EPZA, the 125th PNPCompanyandGovernorRemullaandtheirsubordinatestodesistfromcommittingfurtheractsofdemolition,terrorism,andharassmentuntilfurtherordersfromtheCommission.Twoweekslater,thesamegroupagainbulldozedthearea.

CHRChairmanMaryConcepcionBautistaissuedanotherinjunctionOrderreiteratingherorderandexpanded it to includetheSecretaryofPublicWorksandHighways, thecontractors,andtheirsubordinates.

EPZA filed in the CHR a motion to lift the Order of Injunction for lack of authority to issueinjunctive writs and temporary restraining order. CHR denied the motion. On September 11,1991, thepetitioner, throughtheGovernmentCorporateCounsel,filed inthisCourtaSpecialCivilActionforCertiorariandProhibitionwithprayerfortheissuanceofarestrainingorderand/orpreliminaryinjunction.

TheCourtissuedaTRO,orderingtheCHRtoceaseanddesistfromenforcingand/orimplementingthequestionedinjunctionorders.

ISSUEWHETHER OR NOT THE CHR HAS JURISDICTION TO ISSUE A WRIT OFINJUNCTION OR RESTRAINING ORDER AGAINST SUPPOSEDVIOLATORS OFHUMANRIGHTS,TOCOMPELTHEMTOCEASEANDDESISTFROMCONTINUING

THEACTSCOMPLAINEDOF.


E. HON. ISIDRO CARIÑO, in his capacity as Secretary of the Department of Education, Culture and Sports, DR. ERLINDA LOLARGA,

in her capacity as Superintendent of City Schools of Manila, petitioners, vs. THE COMMISSION ON HUMAN RIGHTS, GRACIANO BUDOY, JULIETA BABARAN, ELSA IBABAO, HELEN LUPO, AMPARO GONZALES, LUZ DEL

CASTILLO, ELSA REYES AND APOLINARIO ESBER, respondents.G.R.No.96681.December2,1991

FACTSOnMondayandaclassday,some800publicschoolteachers,amongthemmembers of the Manila Public School Teachers Association (MPSTA) andAlliance of Concerned Teachers undertook what they described as“mass

concertedactions” to“dramatizeandhighlight” theirplight resulting fromthealleged failureofthepublicauthoritiestoactupongrievancesthathadtimeandagainbeenbroughttothelatter’sattention.Throughtheirrepresentatives,theteacherswereservedwithanorderoftheSecretary of Education to return to work in 24 hours or face dismissal, and a memorandumdirectingtheDECSofficialsconcernedtoinitiatedismissalproceedingsagainstthosewhodidnotcomplyandtohiretheirreplacements.

Forfailuretoheedthereturn-to-workorder,theCHRcomplainants(privaterespondentswereadministrativelychargedonthebasisoftheprincipal’sreportandgivenfive(5)daystoanswerthecharges.Theywerepreventivelysuspendedforninety-days“pursuanttoSec.41ofP.D.807andtemporarilyreplaced.

RULING The constitutional provision directing the CHR to“provide for preventivemeasures and legal aid services to the underprivileged whose humanrights have been violated or need protection” may not be construed to

conferjurisdictionfor,ifthatwastheintention,theConstitutionwouldhaveexpresslysaidso.“JurisdictionisconferredonlybytheConstitutionorbylaw.”

Evidently,the”preventivemeasuresandlegalaidservices”mentionedintheConstitutionrefertotheextrajudicialandjudicialremedies(includingpreliminarywritofinjunction)whichtheCHRmayseekfromthecourtsonbehalfofthevictimsofhumanrightsviolations.Notbeingacourtofjustice,theCHRitselfhasnojurisdictiontoissuethewrit,forawritofpreliminaryinjunctionmayonlybeissued“byajudgeofanycourtinwhichtheactionispending(withinhisdistrict),orbyJusticeoftheCourtofAppeals,oroftheSupremeCourt.ItmayalsobegrantedbythejudgeofaCourtofFirstInstance(nowRegionalTrialCourt)inanyactionpendinginaninferiorcourtwithinhisdistrict.”(Sec.2,RulesofCourt).Awritofpreliminaryinjunctionisanancilliaryremedy.Itisavailableonlyinapendingprincipalaction,forthepreservationorprotectionoftherightsandinterestsofapartythereto,andfornootherpurpose.

PETITIONISGRANTED.TheordersofinjunctionissuedbytheCHRareherebyannulledandsetasideandthetemporaryrestrainingorderwhichtheCourtissuedisherebymadepermanent.


Amidstthefilingofseveralcourtcases,therespondentteacherssubmittedswornstatementstotheCommissiononHumanRightstocomplainthatwhiletheywereparticipatinginpeacefulmassactions,theysuddenlylearnedoftheirreplacementsasteachers,allegedlywithoutnoticeandconsequentlyforreasonscompletelyunknowntothem.

Their complaints-and those of other teachers also ‘ordered suspended by the xx (DECS),” allnumberingforty-two(42)weredocketed.InconnectiontherewiththeCommissionscheduleda“dialogue”,andsentasubpoenatoSecretaryCariñorequiringhisattendancetherein.ThroughtheOfficeoftheSolicitorGeneral,SecretaryCariñosoughtandwasgrantedleavetofileamotiontodismisswassubmittedalleginggroundstherefore,“thatthecomplaintstatesnocauseofactionandthattheCHRhasnojurisdictionoverthecase.”

PendingdeterminationbytheCommissionofthemotiontodismiss, judgmentsaffectingthe“strikingteachers”werepromulgatedintwocases.

TheCommissiononHumanRightshasmadeclearitspositionthatitdoesnotfeelboundbytheCourt’sjointResolution.Ithasalsomadeplainitsintention“tohearandresolvethecaseonthemerits.”Itintends,inorderwords,totryanddecideorhearanddeterminethesecases.

TheCHRevidentlyintendstoitselfadjudicate,thatistosay,determinewithcharacteroffinalityanddefiniteness,thesameissueswhichhavebeenpasseduponanddecidedbytheSecretaryofEducation,Culture&Sports,subjecttoappealtotheCivilServiceCommission,thisCourthavingin fact, as aforementioned, declared that the teachers affected may take appeals to the CivilServiceCommission,ifstilltimely.

Hencethispetition.

ISSUE WHETHER THE COMMISSION ON HUMAN RIGHTS HAS ADJUDICATORYPOWERS.

RULINGTheCourtdeclarestheCommissiononHumanRightstohavenosuchpower;andthatitwasnotmeantbythefundamentallawtobeanothercourtorquasi-judicialagencyinthiscountry,orduplicatemuchlesstakeoverthefunctions

ofthelatter.

ThemostthatmaybeconcededtotheCommissioninthewayofadjudicativepoweristhatitmayinvestigate,i.e.,receiveevidenceandmakefindingsoffactasregardsclaimedhumanrightsviolationsinvolvingcivilandpoliticalrights.Butfact-findingisnotadjudication,andcannotbelikenedtothejudicialfunctionofacourtofjustice,orevenaquasi-judicialagencyorofficial.Thefunctionofreceivingevidenceandascertainingtherefromthefactsofthecontroversythefactsofthecontroversyisnotajudicialfunction,properlyspeaking.Tobeconsideredsuch,thefacultyofreceivingevidenceandmakingfactualconclusionsinacontroversymustbeaccompaniedbytheauthorityofapplyingthelawtothosefactualconclusionstotheendthatthecontroversymaybedecidedordeterminedauthoritatively,finallyanddefinitively,subjecttosuchappealsormodesofreviewasmaybeprovidedbylaw.Thisfunctiontorepeat,theCommissiondoesnothave.


F. MARY CONCEPCION BAUTISTA, petitioner, vs. SENATOR JOVITO R. SALONGA, COMMISSION ON APPOINTMENTS, COMMITTEE ON JUSTICE,

JUDICIAL AND BAR COUNCIL AND HUMAN RIGHTS AND HESIQUIO R. MALLILLIN, respondents.

G.R.No.86439.April13,1989

FACTSOnAugust1987,thePresidentofthePhilippines designatedhereinpetitionerMary Concepcion Bautista as “Acting Chairman, Commission on HumanRights.” It is to be noted that by virtue of such appointment, petitioner

BautistawasadvisedbythePresidentthatshecouldqualifyandenterupontheperformanceofthedutiesoftheOfficeofChairmanoftheCommissiononHumanRights,requiringhertofurnishtheOfficeofthePresidentandtheCivilServiceCommissionwithcopiesofheroathofoffice.

OnDecember22,1988,beforetheChiefJusticeoftheSupremeCourt,Hon.MarceloB.Fernan,petitioner Bautista took her oath of office by virtue of her appointment as Chairman of theCommissiononHumanRights.

Immediately,aftertakingheroathofofficeasChairmanoftheCommissiononHumanRights,petitioner Bautista discharged the functions and duties of the Office of Chairman of theCommissiononHumanRightswhich,aspreviouslystated,shehadoriginallyheldmerelyinanactingcapacitybeginning27August1987.

On9January1989,petitionerBautistareceivedaletterfromtheSecretaryofTheCommissiononAppointmentsrequestinghertosubmittotheCommissioncertaininformationanddocumentsasrequiredbyitsrulesinconnectionwiththeconfirmationofherappointmentsasChairmanoftheCommissiononHumanRights.

On10January1989,theCommissiononAppointments’SecretaryagainwrotepetitionerBautistarequesting her presence at a meeting of the Commission on Appointments Committee onJustice,JudicialandBarCouncilandHumanRightssetfor18January1989thatwoulddeliberateonherappointmentasChairmanoftheCommissiononHumanRights.

The proposition is made clear by the constitutional provisions specifying the powers of theCommissiononHumanRights.

Hence, it is that the Commission on Human Rights, having merely the power‘to investigate”,cannot and should not“try to resolve on the merits” (adjudicate) the matters involved in theabovementionedcaseasithasannounceditmeanstodo.

Thesearemattersundoubtedlyandclearlywithin theoriginal jurisdictionof theSecretaryofEducation, being within the scope of the disciplinary powers granted to him under the CivilServiceLaw,andalsowithintheappellatejurisdictionoftheCivilServiceCommission.


On 13 January 1989, petitioner Bautista wrote to the Chairman of the Commission onAppointments stating, for the reasons therein given, whyshe considered the Commission onAppointmentsashavingJurisdictiontoreviewherappointmentasChairmanoftheCommissiononHumanRights.

InrespondentCommission’scommentdated3February1989,thereisattachedaletteroftheCommissiononAppointments’SecretarytotheExecutiveSecretary,Hon.CatalinoMacaraig,Jr.makingreferencetothe“adinterimAppointmentwithHerExcellencyextendedtoAtty.MaryConcepcionBautistaon14January1989asChairmanoftheCommissiononHumanRights”andinformingSecretaryMacaraigthat,aspreviouslyconveyedtohiminaletterof25January1989,theCommissiononAppointmentsdisapprovedpetitionerBautista’s“ad interimappointment”as Chairperson of the Commission on Human Rights in view of her refusal to submit to thejurisdictionoftheCommissiononAppointments.

On the same date (1 February 1989), the Commission on Appointments’ Secretary informedpetitioner Bautista that the motion for reconsideration of the disapproval of her“ad interimappointmentasChairmanoftheCommissiononHumanRights”wasdeniedbytheCommissiononAppointments.

On20January1989,orevenbeforetherespondentCommissiononAppointmentshadactedonher“adinterimappointmentasChairmanoftheCommissiononHumanRights”petitionerBautistafiledwiththisCourtthepresentpetitionforcertiorariwithaprayerfortheimmediateissuanceoftherestrainingorder,to“declareunlawfulandunconstitutionalandwithoutanylegalforceandeffectanyactionoftheCommissiononAppointmentsaswellasoftheCommitteeonJustice,JudicialandBarCouncilandHumanRights,onthelawfullyextendedappointmentofthepetitionerasChairmanoftheCommissiononHumanRights,onthegroundthattheyhavenolawfulandconstitutionalauthoritytoconfirmandtoreviewherappointment.

Actingonpetitioner’samendedpetitionandsupplementalurgentex-partemotion,theCourtresolvedtoissueatemporaryrestrainingorderdirectingrespondentMallilintoceaseanddesistfromeffectingthedismissal,courtesyresignation,removalandreorganizationandothersimilarpersonnelactions.

Hencethispetition.

ISSUE WHETHER THE PRESIDENT, SUBSEQUENT TO HER ACT OF 17 DECEMBER1988,ANDAFTERPETITIONERBAUTISTAHADQUALIFIEDFORTHEOFFICETO WHICH SHE HAD BEEN APPOINTED, BY TAKING THE OATH OF OFFICE

ANDACTUALLYASSUMINGANDDISCHARGINGTHEFUNCTIONSANDDUTIESTHEREOF,COULDEXTENDANOTHERAPPOINTMENTTOTHEPETITIONERON14JANUARY1989,ANADINTERIMAPPOINTMENTASTERMEDBYTHECOMMISSIONONAPPOINTMENTSORANYOTHERKINDOFAPPOINTMENTTOTHESAMEOFFICEOFCHAIRMANOFTHECOMMISSIONONHUMANRIGHTSTHATCALLEDFORCONFIRMATIONBYTHECOMMISSIONONAPPOINTMENTS.


RULING PETITIONISGRANTED.

TheCourtwithallduerespecttoboththeExecutiveandLegislativeDepartmentsofgovernment,and after careful deliberation, is constrained to hold and rule in the negative. When HerExcellency, thePresidentconvertedpetitionerBautista’sdesignationasActingChairmantoapermanentappointmentasChairmanof theCommissiononHumanRightson17December1988,significantlysheadvisedBautistathat,byvirtueofsuchappointment,shecouldqualifyandenterupontheperformanceofthedutiesoftheoffice.AllthatremainedforBautistatodowastorejectoraccepttheappointment.Obviously,sheacceptedtheappointmentbytakingher oath of office before the Chief Justice of the Supreme Court and assuming immediatelythereafterthefunctionsanddutiesoftheChairmanoftheCommissiononHumanRights.

SincethepositionofChairmanoftheCommissiononHumanRightsisnotamongthepositionsmentionedinthefirstsentenceofSec.16,ArtVIIofthe1987Constitution,appointmentswhicharetobemadewiththeconfirmationoftheCommissiononAppointments,itfollowsthattheappointmentbythePresidentof theChairmanof theCHR is tobemadewithoutthereviewor participation of the Commission on Appointments.To be more precise, the appointmentoftheChairmanandMembersoftheCivilServiceCommission,theCommissiononElectionsandtheCommissiononAudit,whoseappointmentsareexpresslyvestedbytheConstitutioninthePresidentwiththeconsentoftheCommissiononAppointments.ThePresidentappointstheChairmanandMembersoftheCommissiononAppointmentsbecausetheyareamongtheofficersofthegovernment“whomhe(thePresident)maybeauthorizedbylawtoappoint.”AndSection2(c)ofExecutiveOrderNo.163,5May1987,authorizes thepresident toappoint theChairmanandtheMembersoftheCommissiononHumanRights.Itprovides:“(c)theChairmanandtheMembersoftheCommissiononHumanRightsshallbeappointedbythePresidentforatermofsevenyearswithoutreappointment.Appointmenttoanyvacancyshallbeonlyfortheunexpiredtermofthepredecessor.” Indeed, the Court finds it extremely difficult to conceptualize how an office conceived andcreatedbytheConstitutiontobeindependentandvestedwiththedelicateandvitalfunctionsofinvestigatingviolationsofhumanrights,pinpointingresponsibilityandrecommendingsanctionsaswellasremedialmeasurestherefore,cantrulyfunctionwithindependenceandeffectiveness,whenthetenureinofficeofitsChairmanandMembersismadedependentonthepleasureofthePresident.ExecutiveOrderNo.163-A,beingantitheticaltotheconstitutionalmandateoftheindependencefortheCommissiononHumanRightshastobedeclaredunconstitutional.

Tohold,asthecourtholds,thatpetitionerBautistaisthelawfulincumbentoftheofficeoftheChairmanoftheCommissiononHumanRightsbyvirtueofherappointment,assuch,andheracceptancethereof,isnottosaythatshecannotberemovedfromofficebeforetheexpirationofherseven(7)yearterm.Shecertainlycanberemovedbutherremovalmustbeforcauseandwithherrighttodueprocessproperlysafeguarded.


G. COMMISSION ON HUMAN RIGHTS, petitioner, vs. CIVIL SERVICE COMMISSION and ATTY. ELIAS V. PACETE, respondents.

G.R.No.101207.October1,1993.

FACTSAtty. Elias Pacete, a permanent appointee since February 1, 1988 to thepositionofDivisionChiefofRegionIXoftheCommissionofHumanRights(CHR)basedinZamboangaCity,filedanapplicationforoptionalretirement

pursuanttoRep.ActNo.1616,1datedJune17,1989effectiveJuly31,1989becauseoffailingeyesight. On July 7, 1989, however, Pacete sent a notice of withdrawal of his application forretirement. On July 17, 1989, Pacete was informed by the Chairman of the CHR through atelegramoftheacceptanceandapprovalofhisapplicationforoptionalretirementeffectiveJuly31,1989andtheappointmentofAtty.RodrigoRoyashissuccessoreffectiveAugust1,1989.

On August 25, 1989, the Government Service Insurance System (GSIS) informed privaterespondentthathisapplicationforoptionalretirementcannotbefavorablyconsideredduetohisfailuretomeettheconditionprovidedforinSection12(c)ofRep.ActNo.1616,asamended,requiring three (3) years of continuous service preceding retirement. Consequently, the GSISadvisedtheCHRtoallowPacetetocontinueintheservicetocompletethesaidrequirement.Accordingly,PaceterequestedtheCHRthathebereinstatedtohisformerpositionwithbackwagesandallowancesandtherecalloftheappointmentofhissuccessor,Atty.Roy.OnOctober18,1989,theCHRthrougharesolution,deniedhisrequestandinsteadformallychargedhimwithincompetence,grossinefficiencyintheperformanceofofficialdutyandfailuretoaccountforpublicfunds.

On May 27, 1990, Pacete, after being informed of the action taken by the CHR elevated hiscasetotheMeritSystemsProtectionBoard(MSPB).OnAugust31,1990,theMSPBorderedtheimmediate reinstatementofprivate respondent to his former positionwithpayment of backwagesandotherbenefitsallowedbylawwithoutprejudicetotheoutcomeoftheformalchargesagainsthim.

Upon learning of the favorable decision in favor of private respondent, Atty. Roy forthwithsteppeddownasRegionalFieldOfficeronOctober1,1990.

TheCHR,throughitsthenChairman,MaryConcepcionBautista,filedamotionforreconsiderationdatedOctober15,1990.OnJanuary10,1991,theBoardaffirmeditsAugust31,1990decision.OnFebruary11,1991,petitionerappealedthedecisionoftheMSPBtotheCivilServiceCommissionwhichaffirmedthedecisionoftheMSPBonJuly25,1991.

Meanwhile, because of private respondent’s failure to settle his accountability as RegionalField Officer in the amount of P114,758.60, the CHR referred this matter to the Office of theOmbudsmanforthefilingofappropriatecriminalchargesagainsthimonJuly26,1991.

Hencethispetition.


H. SECURITY AND CREDIT INVESTIGATION, INC. and VICENTE REYES, JR., petitioners, vs. THE NATIONAL LABOR RELATIONS COMMISSION (First Division), FELICIANO MERCADO, EDGAR

SOMOSOT and DANTE OLIVER and the COMMISSION ON HUMAN RIGHTS, respondents.

G.R.No.114316.January26,2001

FACTS ThisisapetitionforcertiorariassailingtheDecisionofrespondentNationalLaborRelationsCommission(NLRC),FirstDivision,datedJanuary24,1994,inNLRCCaseNos.00-03-01791-90and00-03-01886-90whichaffirmedwith

modificationtheDecision,datedNovember18,1993,ofLaborArbiterJoseG.DeVeraordering

ISSUEWHETHER OR NOT PUBLIC RESPONDENT CSC GRAVELY ABUSED ITSDISCRETION IN ORDERINGTHE REINSTATEMENT OF PRIVATE RESPONDENTANDTHEPAYMENTOFHISBACKWAGES.

TheCourtaffirmsthedecisionoftheCivilServiceCommission.

The issue in this case revolves around the optional retirement of privaterespondent.Thecollateral issuesofhis incompetenceand inefficiencyarequestionsoffactwhichthiscourthasnojurisdictiontopassupon.

TheCourtfindsthattherewasaglaringdisregardofthisprocedurelaiddowninthelaw.Infact,theOctober18,1989resolutionoftheCHRdenyinghimreinstatementforfailuretofulfillthethree-yearrequirementofcontinuousserviceprecedingretirementwasreachedwithoutnoticeand hearing. Much less was there any request for optional retirement of private respondentfromtheCHRto theCivilServiceBoardofAppealsbasedon incompetenceand inefficiency.Althoughhewasfurnishedacopyoftheresolutiondenyinghisapplicationforreinstatementwiththeattendantchargesagainsthim,hewasnotaffordedtheopportunitytorefutethempriortothepromulgationofthesaidresolution.Therecordsdisclosethatthepetitionerrequiredprivaterespondenttoanswerthechargesofallegedincompetenceandinefficiencyinthesameresolutionwhichdeniedhisreinstatement.Theattempttoobservedueprocesswasmadeonlyafterhehadbeenseparatedfromtheservice.Therefusalof theCHRtorestorePacetetohisformerposition,beingtantamounttoterminationwithoutvalidcause,theMSPBdecreedbackwagesinprivaterespondent’sfavor.

Toaverthattherealcausewhichprecipitatedtheapprovaloftheoptionalretirementofprivaterespondentwasthelatter’sincompetenceandinefficiencybasedonCHR’sprofferedevidenceandthatitsapprovalwasanopportunetimetoseparatehimfromtheservicesmacksmoreofasubterfugetoeasehimoutsincethechargeswereleveledagainsthimonlyaftertheGSIShaddisapprovedhisapplicationduetonon-fulfillmentofthethree-yearrequirementofcontinuousserviceprecedingretirement.

RULING


ISSUE WHETHER OR NOT THE HONORABLE NATIONAL LABOR RELATIONSCOMMISSION(FIRSTDIVISION)COMMITTEDGRAVEABUSEOFDISCRETIONAMOUNTINGTOLACKOFJURISDICTIONWHENITSETASIDETHEORDEROF

LABORARBITERJOSEG.DEVERAREQUIRINGTHECHRTOREIMBURSEPETITIONER.

RULINGSection6ofR.A.6727imposestheliabilityforpaymentoftheincreaseinwagesontheprincipalwhichinthiscaseistheCHR,thus:

Incaseofcontractsforconstructionprojectsandforsecurity,janitorialandsimilarservices,theprescribedincreasesinthewageratesoftheworkersshallbebornebytheprincipalsorclientsoftheconstruction/servicecontractorsandthecontractshallbedeemedamendedaccordingly.In the event however, that the principal or client fails to pay the prescribed wage rates, theconstruction/servicecontractorshallbejointlyandseverallyliablewithhisprincipalorclient.

ItisthusclearthattheCHRisthepartyliableforpaymentofthewageincreaseduetorespondentsecurity guards. While petitioner, as the contractor, is held solidarily liable for the paymentof wages, including wage increases, as prescribed under the Labor Code, 19 the obligationultimatelybelongstotheCHRasprincipal.

TheLaborArbiterwasthereforecorrectinrequiringtheCHRtoreimbursepetitionertheamountof P28,500.00 representing the unpaid wage increases of respondent security guards for theperiodJuly1,1989toApril15,1990.

petitioner Security and Credit Investigation, Inc. (petitioner) to reinstate private respondentsFeliciano Mercado (Mercado), Edgar Somosot (Somosot), and Dante Oliver (Oliver) withoutbackwages and ordering third-party respondent Commission on Human Rights (CHR) toreimbursepetitionerintheamountofTwentyEightThousandFiveHundredPesos(P28,500.00).

I. IN THE MATTER OF THE PETITION FOR HABEAS CORPUS OF LEONARDO PAQUINTO AND JESUS CABANGUNAY,CHAIRMAN SEDFREY

A. ORDOÑEZ, COMM. HESIQUIO R. MALLILLIN, COMM. NARCISO C. MONTEIRO, COMM. PAULYNN PAREDES-SICAM, THE COMMISSION ON

HUMAN RIGHTS, petitioners, vs. DIRECTOR OF PRISONS,

FACTS

G.R.no.115576August1994

WhyareLeonardoPaquintoandJesusCabangunaystillinprison?

These persons are among the civilians who were tried by the militarycommissions during the period of martial law. Both were originally condemned to die bymusketry,buttheirsentencewascommutedbythenewConstitutiontoreclusionperpetua.

Their convictions were subsequently nullified by this Court in the case of Olaguer v. MilitaryCommissionNo.34,whereweheldthatthemilitarytribunalshadnojurisdictiontotrycivilianswhenthecourtsofjusticewerefunctioning.


Accordingly,inthecaseofCruzv.PonceEnrile,thisCourtdirectedtheDepartmentofJusticetofilethecorrespondinginformationsinthecivilcourtsagainstthepetitionerswithin180daysfromnoticeofthedecision.

NoinformationhassofarbeenfiledagainstPaquintoandCabangunay,buttheyhaveremainedunderdetention.

OnMay27,1992,ErnestoAbaloc,togetherwithCabangunayandPaquinto,wrotetotheUnitedNationsHumanRightsCommittee(UNHRC)complainingthattheircontinueddetentionviolatedtheirrightsunderArticles6,7,9,10,14,and26oftheInternationalCovenantonCivilandPoliticalRights.

InitsdecisiondatedOctober14,1993,theUNHRCdeclaredtheircommunicationasadmissibleandrequestedtheRepublicofthePhilippinestosubmitawrittenexplanationoftheircomplaintwithinsixmonthsfromthedateoftransmittal.

TheDepartmentofForeignAffairsfurnishedtheCommissiononHumanRightswithacopyofthedecision.Thereupon,theCommission,throughitsChairmanSedfreyA.Ordonez,wrotetheSecretaryof Justiceof its intention tosue for the releaseof thecomplainantsunlesscriminalchargeshadalreadybeenfiledagainstthem.

On June 7, 1994, the Department of Justice informed the Commission that Abaloc had beenreleasedonSeptember29,1992,andthatPaquintoandCabangunaywerestilldetainedattheNationalPenitentiary.TherewastheintimationthatitwouldnotobjecttoapetitionforhabeascorpusthattheCommissionmightchoosetofileforPaquintoandCabangunay.ThisassurancewaslaterconfirmedinaletterfromtheDepartmentdatedMay31,1994.

ThepresentpetitionforhabeascorpuswasfiledwiththisCourtonJune13,1994.Thewritwasimmediately issued, returnableonorbeforeJune22,1994,onwhichdateahearingwasalsoscheduled.

RULING Thereisabsolutelynoquestionthattheprisoners’pleashouldbeheeded.Thegovernmenthasfailedtoshowthattheircontinueddetentionissupportedbyavalidconvictionorbythependencyofchargesagainstthemorbyany

legitimatecausewhatsoever.Ifnoinformationcanbefiledagainstthembecausetherecordshave been lost, it is not the prisoners who should be made to suffer. In the eyes of the law,PaquintoandCabangunayarenotguiltyorappeartobeguiltyofanycrimeforwhichtheymaybevalidlyheld.Hence,theyareentitledtobesetfree.

Libertyisnotagiftofthegovernmentbuttherightsofthegoverned.Everypersonisfree,saveonlyforthefettersofthelawthatlimitbutdonotbindhimunlessheaffrontstherightsofothersoroffendsthepublicwelfare.LibertyisnotderivedfromthesufferanceofthegovernmentoritsmagnanimityorevenfromtheConstitutionitself,whichmerelyaffirmsbutdoesnotgrantit.Libertyisarightthatinheresineveryoneofusasamemberofthehumanfamily.Whenapersonisdeprivedofthisright,allofusdiminishedanddebasedforlibertyistotalandindivisible.

WHEREFORE,thepetitionisGRANTED.JesusCabangunayandLeonardoPaquintoshouldnotbedetainedinprisonaminutelonger.TheyareorderedreleasedIMMEDIATELY.


5

Deliberations of the 1987Constitutional Commission

in the Creation of the Commission on

Human Rights

WEDNESDAY, AUGUST 26, 1986 710

MR. BENGZON. I move that we consider Committee Report No. 37 on Proposed Resolution No. 539 asreportedoutbytheCommitteeonConstitutionalCommissionsandAgencies.

THE PRESIDENT. Isthereanyobjection?(Silence)TheChairhearsnone;themotionisapproved.ConsiderationofProposedResolutionNo.539isnowinorder.Withthepermissionofthebody,theSecretary-Generalwillreadonlythetitleoftheproposedresolutionwithoutprejudicetoinsertingintherecordthewholetextthereof.

THE SECRETARY-GENERAL.ProposedResolutionNo.539,entitled:RESOLUTIONTOINCORPORATEINTHENEWCONSTITUTIONTHEPROVISIONSONTHECOMMISSIONONHUMANRIGHTS.

COMMITTEEREPORTNO.37

The Committee on Constitutional Commissions and Agencies, to which was referred ProposedResolutionNo.365,introducedbyHon.GarciaandSarmiento,entitled:

RESOLUTION TO INCORPORATE IN THE NEW CONSTITUTION THE NATIONAL POLICE COMMISSION, THENATIONALPOLLUTIONCONTROLCOMMISSION,THEJUDICIALCOMMISSION,THECOMMISSIONONGOODGOVERNMENT,ANDTHECOMMISSIONONHUMANRIGHTSASADDITIONALINDEPENDENTCONSTITUTIONALCOMMISSIONS.

hasconsideredthesameandhasthehonortoreportitbacktotheConstitutionalCommissionof1986withtherecommendationthatProposedResolutionNo.539preparedbythecommittee,entitled:

RESOLUTIONTO INCORPORATE INTHE NEW CONSTITUTIONTHE PROVISIONS ONTHE COMMISSION ONHUMANRIGHTS.

be approved in substitution of Proposed Resolution No. 365, with the Committee on ConstitutionalCommissionsandAgenciesandHon.GarciaandSarmientoasauthorsthereof.

Respectfullysubmitted:

(Sgd.)CiriloA.Rigos (Sgd.)VicenteB.FozVice-Chairman Chairman CommitteeonConstitutional CommissionsandAgencies

(Sgd.)YusupR.Abubakar (Sgd.)RobertoR.Concepcion

CONSIDERATION OF PROPOSED RESOLUTION NO. 539(Article on the Constitutional Commissions-

Commission on Human Rights)


(Sgd.)CrispinoM.deCastro (Sgd.)AlbertoMK.Jamir

(Sgd.)ChristianS.Monsod TeresaF.Nieva

FlorenzD.Regalado (Sgd.)RusticoF.delosReyes,Jr.

FranciscoA.Rodrigo (Sgd.)BernardoM.Villegas

(Sgd.)DecorosoR.Rosales

PROPOSEDRESOLUTIONNO.539


Beitresolvedasitisherebyresolved,bytheConstitutionalCommissioninsessionassembledtoincorporateinthenewConstitution,thefollowingprovisions:

ARTICLE______THECONSTITUTIONALCOMMISSIONS

E.TheCommissiononHumanRights

Sec.1.There shall be an independent Commission on Human Rights composed of a Chairman and twoCommissioners,whoshallbenatural-borncitizensofthePhilippines,at leastthirty-fiveyearsofageandmembersofthebarforatleasttenyears.

TheChairmanandtheCommissionersshallbeappointedbythePresidentforatermofsevenyearswithoutreappointment.Of theCommissionersfirstappointed,oneshallholdofficeforsevenyears,anotherfiveyears,andthethirdforthreeyears.Appointmenttoanyvacancyshallonlybefortheunexpiredportionofthetermofthepredecessor.

SEC.2.TheCommissiononHumanRightsshallhavethefollowingpowersandfunctions:

(1) Investigateall formsofhumanrightsviolationscommittedbypublicofficers,civilianandmilitaryauthorities,orbyprivateparties;

(2) Issuesubpoenaandsubpoenaducestecumtocompeltheattendanceofanypartyto itsproceedings or the production of materials and documents, with the power to cite forcontemptforviolationsthereofinaccordancewiththeRulesofCourtpromulgatedbytheSupremeCourtofthePhilippines;

(3) Provideappropriatelegalmeasuresfortheprotectionofhumanrightsofallpersonswhosehumanrightshavebeenviolatedorneedprotection;and

(4) Establishacontinuingprogramofeducationandinformationtopropagatetheprimacyofhumanrights.

(5) Performsuchotherdutiesandfunctionsasmaybefixedbylaw.

37Deliberations of the Constitutional Commission

TUESDAY, AUGUST 26, 1986 711

MR. BENGZON. I ask that Commissioners Foz and Sarmiento be recognized to sponsor the committeereport.

THE PRESIDENT.CommissionersFozandSarmientoarerecognized,andthemembersofthecommitteearerequestedtooccupythefrontdesk.

MR. FOZ.MadamPresident,maywerequestthatcopiesoftheproposedresolutionbedistributedtotheMemberssothattheycanfollowoursponsorshipoftheresolution.

SPONSORSHIP REMARKS OF COMMISSIONER SARMIENTO

MR. SARMIENTO.ThisresolutionwassponsoredbyCommissionerGarciaandthishumblerepresentationandapprovedbythecommitteeasshownbyCommitteeReportNo.37.

My fellow Commissioners, the creation of a Human Rights Commission is a timely innovation in ourConstitution.Ithascomeatatimewhentherecognitionoftheneedtoprotectandpromotehumanrightsisatitsheight.Fifteenyearsofabusesoffundamentalrightsandfreedomshaveawakenedustotheneedforacomprehensiveprogramforthepromotion,protectionandrespectforhumanrights.Suchaprogramcanbestbeformulatedandundertakenbyaspecializedagencywhichisindependentfromthethreemainbranchesofgovernmentandequippedwiththenecessarypowersandfunctionstocarryoutitsprograms.Moreover,CommissiononHumanRightsfallssquarelyintothelistofprioritiesofthepresentgovernmentanddovetailswiththecommission’sinnovativeworkonhumanrights.Asenvisioned,thecommissionwillinvestigatehumanrightsabusescommittedbyanypersonandarisingfromanysource,whethercausedbyprivatepracticesinimicaltohumanrightsorresultingfromgovernmentpolicies,rulesandregulationsortheimplementationthereof.Inrelationthereto,itcanrecommendtothePresidentortotheappropriateagenciesthevariouscoursesofaction,fromtheprosecutionofguiltypartiestotheindemnificationandadoptionofmeasuresforprotection,andthereviewandrepealofoppressiverules,policiesorevenlaws.Inaddition,thecommissionwillconducteducationandpublicinformationcampaignswithaviewtoincreasingpublicawarenessofhumanrightsissuesconsistentwithitsobjectiveofpromotionandinculcationofrespectforhumanrights.Hopefully,withapermanentconstitutionalbodyinpursuitoflong-termhumanrightsgoalsthroughacontinuingprogram,wemaybeabletoattainwhatveryfewThirdWorldcountrieshavebeenableto.TheestablishmentofaHumanRightsCommission inourConstitutionwillbethesymbolofourcommitmenttojusticeandpeace,andthepromotionandprotectionofhumandignity.

SPONSORSHIP REMARKS OF COMMISSIONER GARCIA

MR. GARCIA. I would simply like to add just one point. I think an outstanding feature of this probableCommissiononHumanRightsisthefactthatitwillhelpestablishaprogramofeducationandinformationtopropagatehumanrights.Inotherwords,weenvisionthepreventionofhumanrightsviolationsinthefuturewherewehaveacitizenrythatisconvictedthatitmustupholditsbasicrights;thatitmustdefenditsbasicrightsbecauseitknowswhatitsrightare,inthefirstplace.Also,forthosewhomustupholdthelaw,theywillbeeducatedinasense;forexampleregardingthetreatmentofprisonersanddetaineesandtheproperproceduresaccordingtothedueprocessoflaw.SothisresponsibilitythatwillbegiventotheHumanRightsCommissionwill,inaway,resolveandprevent,ratherthancurewhatisunjustafterithasbeencommitted.


Secondly,Ibelieveitisalsoveryimportantfactthatbecausewehavenowwonourbasicrightsasapeople,wemustalso, inasense, realizethattherearemanyotherpeople inotherpartsof theworldwhohavenotyetwontheirrights.Oneoftheotherareasofeducationispreciselytoshowthedifferentformsandwaysofthehumanrightsofotherpeoplesareviolatedinotherpartsoftheworld.Andwecanalsohaveapeoplewhowillbeconsciousoftheseviolationsandperhapscontributetotheprotectionofhumanrightswherevertheyareviolated;becausehumanrightshaverightshavenocolor,nocreed,nonationalityandnoboundaries.


MR. SARMIENTO.Beforeweentertainquestions,wewishtoexpressourthankstothefollowingmembersof the committee who have encouraged and supported us: Commissioner Rigos, vice-chairman;Commissioner Foz, chairman; Commissioners Abubakar, Monsod and Rosales; our beloved Chief JusticeRobertoConcepcion;CommissionersJamir,delosReyesandVillegas.

MR. FOZ.MadamPresident.

THE PRESIDENT.CommissionerFozisrecognized.

MR. FOZ.Thecommitteeisnowreadytoentertainquestionsfromthefloorregardingthecommitteereportontheproposedresolution.

MR. RAMA. IaskthatCommissionerNolledoberecognized.

THE PRESIDENT.CommissionerNolledoisrecognized.

MR. NOLLEDO.Thankyou,madamPresident. Iwould liketopropoundafewquestionsofthechairmanandthemembersofthecommittee.Iunderstandthat,basedonthecommitteereport,thepowersoftheCommissiononHumanRightsareprincipallyinvestigativeandrecommendatoryinnature.AmIright?

MR. SARMIENTO.Yes,theCommissionerisright.

MR. NOLLEDO.Andtherefore,aftertheinvestigationisconducted,recommendationsaremade.CantheCommissionergiveusthecoverageoftheserecommendations?

MR. SARMIENTO.These recommendations will include, among others, the filing of appropriate criminalactionstopartiesguiltyofhumanrightsviolations.

MR. NOLLEDO. Andwhowillthenprosecutethesecases,theordinaryfiscals?

MR. SARMIENTO. TheappropriategovernmentagenciesliketheCityFiscal’sOfficeandtheprosecutoryarmofthegovernment,willundertakethisprosecution.

MR. NOLLEDO.AmIrightifIsaythattheprosecutorswillbeassistedalsobytheCommissiononHumanRights?

MR. SARMIENTO. Wearenotforeclosingthatpossibility.Itispossiblethattheycanworktogetherforthe


prosecutionofvariouscrimesagainsthumanrights.

MR. NOLLEDO.IwillexpecttheCommissiononHumanRightstoholditsofficeinthegreaterManilaarea.Howaboutviolationsindifferentpartsofthecountry,say,inMindanaoortheVisayas?Howwillthesecasesbeinvestigated?WillthepartieshavetocometoManila?

MR. SARMIENTO.That is a very good question, madam President. We discussed that question actuallyduringourcommitteehearings.Wearethinkingofexpandingthecommissiontocoverthevariousislandsofthecountrysothattheserviceswillberenderedtovictimsofhumanrightsviolationsinallpartsofthecountry.So,possibly,extensionofficeswillbecreatedinthethreeislandsofthecountry.

MR. FOZ. At the same time, Madam President, the commission will be within its contempt authority todeputizeevenprivatelawyersorpublicofficersintheinvestigationofcertaincasesorincidentswhichmighthavetakenplaceormighthavehappenedinsomefar-flungpartsofthecountrynecessitating,therefore,theassistanceofotherpublicorprivategroups.Forinstance,IhaveinmindtheIntegratedBarofthePhilippines’chaptersinareaswhereviolationsofhumanrightsmayhavebeencommitted.Sopublic,aswellasprivate,assistance may be secured by the proposed Commission on Human Rights in the investigation of suchcases.

MR. SARMIENTO. Inaddition to the IBP,wecanask theservicesofhumanrightsorganizations, lawyers’organizations,forinstance,theProtestantLawyers’League,whichisanorganizationoflawyersscatteredthroughoutthecountry.WehavealsotheFreeLegalAssistanceGroupwhichhasamembershipofabout200 lawyersscatteredthroughout thecountry.Wehavealso thegroupknownasMABINI,MovementofAttorneysBrotherhood,Integrity,NationalismwhichcanalsoassisttheCommissiononHumanRights.WehavealsotheCLASP,CitizensLegalAssistanceSocietyofthePhilippines,ofVice-PresidentLaurel.Sowecanasktheservicesofthesevariouslawyers’organizations.

MR. NOLLEDO. MayIpleasebeenlightenedonthenatureoftheCommissiononHumanRights? Is itapurelyadministrativebodyorisitaquasi-judicialbody?Iwillfollowthisupwithanotherquestion.

MR. SARMIENTO. It isaquasi-judicialbody,notapurelyadministrativebody. IfwelookatthefunctionsenumeratedunderSection2,wewillnoticethatitisnotmerelyanadministrativebodybutaquasi-judicialbody.

MR. NOLLEDO.Therefore,amIrightifIconcludethattheRulesonEvidencewillnotbestrictlyfollowed?

MR. SARMIENTO.Yes,MadamPresident.

MR. NOLLEDO.Withrespecttopage2,line9itsaysherethatoneofthefunctionsoftheCommissiononHumanRightsistoprovideappropriatelegalmeasuresfortheprotectionofhumanrightsofallpersonswithinthecountry,includingprovisionsforlegalaidservicesforindigentpersons,etcetera.Iwouldliketoknowthecoverageofthislegalaid.Willitcoveronlycasesfiledbeforethecommission,oritwilllikewisecovercasesfiledbeforetheappropriatecourtsortribunals?



MR. SARMIENTO. MadamPresident,itwillcovercasesthatarebeinghandledbythecommission.AndiftherearecasespendingbeforeothertribunalsthatwouldinvolvehumanrightsviolationsIthinkitiswithintheprovinceofthiscommissiontoprovideitsassistance.

MR. NOLLEDO.Mylastquestion,MadamPresident,iswithrespecttopage2,line12-“Establishacontinuingprogramofeducationinformationtopropagatetheprimacyofhumanrights.”DidtheCommissionereverrecommendthathumanrightsbeapartofthecurriculuminhighschoolorcollege?

MR. GARCIA.Yes,infact,thathasalreadybeendiscussedinthecommitteehearings,andthatisoneoftheproposalswewouldliketomake.

MR. NOLLEDO.Thankyou,MadamPresident.

MR. RODRIGO. MadamPresident.

THE PRESIDENT. CommissionerRodrigoisrecognized.

MR. RODRIGO. Iwouldliketoaskafewquestions.WillthisCommissiononHumanRightsbeoneoftheconstitutionalcommissionsunderArticleXIIwhichwealreadyapproved?

MR. SARMIENTO. Yes,MadamPresident.

MR. RODRIGO. Therearenowthreeconstitutionalcommissions-CommissiononCivilService,CommissiononElectionsandCommissiononAudit.


MR. RODRIGO. Just as a matter of procedure, have we not already approved Article XII on SecondReading?

MR. FOZ.Yes,MadamPresident.

MR. RODRIGO.HaveweapproveditonThirdReadingalso?

MR. FOZ.Yes, but the reservation was made with regard to the initial provision which enumerates theconstitutionalcommissionsintheConstitutiontotheeffectthatthisprovisionwillbesubjecttoadditionalconstitutionalcommissionsthatthebodymaylateronwishtoapproveandincludeintheconstitutionaldraft,MadamPresident.

MR. RODRIGO. Idonotremember.However,minusthatreservation,theprocedurewouldbetoaskforareconsiderationoftheapprovalofthisarticle.Ithinkitwasapprovedalsoonthirdreading.

MR. FOZ.Yes.Buttherecordwillbearusoutthattherewassuchareservation.Irememberitverydistinctlythatthatwasmadeclearbeforeweevenvotedonsecondreadingonthedraft-onthecommonprovisions,whichrelatestothethreeconstitutionalcommissions.Thereservationwasmade,MadamPresident.


MR. RODRIGO. So if the present proposal is approved, then Section 1 of Article XII, which reads:“Theconstitutionalcommissionsshallbe theCivilServiceCommission, theCommissiononElectionsandtheCommissiononAudit,”shouldlikewisebeamended.

MR. FOZ. Yes,itshouldbeamendedtoincludetheCommissiononHumanRights,madamPresident.

MR. RODRIGO. SincetheCommissiononHumanRightswillcomeunderArticleXII,itwillbesubjecttothecommonprovisionsunderArticleXII.

MR. FOZ.Thatisright,MadamPresident.

MR. RODRIGO. OneoftheprovisionsofArticleXIIis:

Nomemberoftheconstitutionalcommissionshall,duringhistenure,holdanyotherofficeoremploymentorengageinthepracticeofanyprofession.

So, if this provision were to be followed, Atty. Diokno cannot practice his profession if he becomes thechairmanoftheCommissiononHumanRights.Itistoberememberedthatheisintheactivepracticeoflaw.

MR. FOZ. Madam President, all the appointees will have to be subject to the same qualifications anddisqualificationsasprovidedinthecommonprovisions.

MR. RODRIGO.SoletussayAtty.Diokno,whoisnowthechairmanofthePresidentialCommitteeonHumanRights,remainsorbecomesthechairmanorevenamemberofthatcommittee,hewillhavetogiveuphislawpractice,elsehehastorejectorresignthepositionaschairmanoftheHumanRightsCommission.


MR. FOZ.Thatwouldbetheconsequence,ifheacceptsanappointmentintheproposedCommissiononHumanRights.

MR. RODRIGO. Bytheway,mayIknowwhoisthevice-chairmanofthecommissionnow?

MR. SARMIENTO.Thevice-chairmanisJusticeJ.B.L.Reyes,whoisnowtheactingchairmanoftheCommitteeonHumanRightsintheabsenceofCommissionerDiokno.

MR. RODRIGO.SodoestheCommissionerthinkwecangetrealablelawyerswiththecaliberofAtty.DioknoandJusticeJ.B.L.Reyes,iftheycomeunderthisprohibitionthattheycannotpracticetheirprofession?

MR. SARMIENTO.MadamPresident,wehave,Ibelieve,manyablelawyers.Ithinkyearsofhandlinghumanrightscasesduringthedarkdaysofmartiallawhaveproducedlawyerswhoarecapable,able,dedicatedandcommittedtothepromotionandprotectionofhumanrights.Asidefromtheselawyers,therearemanyretiredJusticesoftheSupremeCourtwhocanprovidetheirwisdom,theiradviceandtheirassistance.ChiefJusticeConcepcionwillalwaysbetheretogivehistipsinthehandlingofthesecases.

MR. RODRIGO.Yes, I know that there are many human rights lawyers. I handed a few cases on human


rightsmyself.Butthen,Atty.DioknoandJusticeJ.B.L.Reyesareveryusefulaspracticinglawyers,defendingvictimsofviolationsofhumanrights.ButfromtheanswerofthecommitteetothequeriesofCommissionerNolledo,itseemsthatahumanrightslawyerwhoisveryactiveindefendinghumanrightscaseswillbeamereinvestigatorandadvisoroncehebecomesamemberofthecommission.

MR. SARMIENTO.MadamPresident,whenImentionedableanddedicatedlawyers,Iwasnotreferringtolawyerswhoarepurelyactiveinthepracticeoflaw.Therearealsoacademicians,membersoftheacademe,whodotheirresearchingandcounseling,andIthinktheywillbeeffectiveofthiscommission.

MR. RODRIGO.Thankyouverymuch.

MR. SARMIENTO.Thankyou,MadamPresident.

MR. RAMA.IaskthatCommissionerNievaberecognized,MadamPresident.

THE PRESIDENT.CommissionerNievaisrecognized.

MS. NIEVA.Madam President, Iamone of the sponsors of this proposed resolution.Whenthiswasfirstpresented,arequestwasmadethatIbeoneofthesponsors.IimmediatelyaccededbecauseIthoughtthatthiswasaveryvitalcommissionthatwewouldneedespeciallyinviewofourexperienceduringthesepast15years.However,thisisthefirsttimethatIreallyhavehadachancetolookattheentirearticleandIjustwantoneortwoclarifications.InthisSection2,line22,whatwouldtheterm“privateparties”encompass?

MR. SARMIENTO. Madam President, “private parties” include those persons who are not in any wayconnectedwiththegovernment,whoisnotamilitaryofficeroramilitarypersonnel,butjustalayman,anordinaryperson.

MS. NIEVA.Wouldthisrefer,therefore,topartiesorgroupslikethesectsthatwehave,those“Tadtadgroups”andallthosewhoarealsoguiltyofhumanrightsviolations,includingeventheNPA’s?WhatImeanaretherightists,theleftistsorwhoevertheyare,whoweknowarenotinnocentofhumanrightsviolations.

MR. SARMIENTO.Itiscorrectlystated,MadamPresident.

MS. NIEVA. So,therefore,thiswouldincludeallgroups-theleftists,rightistsorthecentrists.Therefore,thescopeofthisHumanRightsCommissionwouldbemuchwiderthanthepresentCommissiononHumanRights?

MR. SARMIENTO. Yes,MadamPresident,thatiswhyitwillrequireafull-timededication.

MS. NIEVA.Iamsatisfiedwiththeanswers,MadamPresident,becausethishasbeenthesubjectofdebate,especiallywiththecommissionofAtty.Diokno.Therehavebeensomanyprotestationsthattheyshouldalsocoverbothsidestobefair,butthatdoesnotliewithintheirpurview.InthisCommissionaspresentlyconstituted,however,thecommitteeisassuringusthat itwouldcoverallgroupsor individualsguiltyofhumanrightsviolations.

MR. SARMIENTO.TheoriginalintentionoftheproponentswastolimitthecoveragetomilitaryauthoritiesbutbecauseofthesuggestionsandcommentswehavereceivedfromotherCommissionersandrelyingontheircollectivewisdom,wedecidedtoincludeprivateparties.


MS. NIEVA.Thankyouverymuch.

MR. SARMIENTO. Thankyou,MadamPresident.

SR. TAN. MayIaskquestionsoftheproponents,MadamPresident?


THE PRESIDENT.CommissionerTanisrecognized.

SR. TAN.MadamPresident,thereisonethingInoticehereandthatistheproposedcommissionissimilartotheDioknoCommission,butitisnarrowerinthesenseofrecommendatorypowers.

MR. SARMIENTO.Yes, there are differences, Madam President. Section 2, paragraph (1), includes privateparties;Section2,paragraph(3),providesappropriatelegalmeasuresfortheprotectionofhumanrights,includingprovisionsforlegalaidservices;andSection2,paragraph(4),providesfortheestablishmentofacontinuingprogramofeducation.ThesearenotsomeofthefunctionsoftheDioknoCommission.Webelievethatweshouldaddnewfunctions,oneofwhichisamassiveinformationeducationcampaign.Sothesearenewprovisions,MadamPresident.

SR. TAN.Yes,thatisgreat.IguessitwasdoneontheassumptionthatwewillhaveverymanyhumanrightsviolationswhichIhopewoulddecrease.

MR. SARMIENTO. Madam President, we limited the recommendatory function because there are othergovernmentagencieswhichcanhandlethisduty.Forinstance,wehavetheOfficeoftheCityFiscal,OfficeoftheProvincialFiscal,theMinistryofJustice,whichcanverywellhandletheprosecutionofhumanrightscases.Sothisproposedcommissionwillworkcloselywiththesegovernmententities.

SR. TAN.Thankyou.

MR. SARMIENTO.Thankyou,madamPresident.

THE PRESIDENT.TheFloorLeaderisrecognized.

MR. RAMA.MadamPresident,justacoupleofquestions.Section2,paragraph(3),reads:

Provide appropriate legal measures for the protection of human rights of allpersonswithinthePhilippines,includingprovisionsforlegalaidservices…

Iamstruckbythewords“withinthePhilippines.”WhataboutthoseFilipinoswhohavepersecutedoutsidethePhilippines?Wewillrememberthatthelongarmofmartial lawduringthetimeofPresidentMarcosreachedouttotheUnitedStatestopersecute,harassandevenkillpeoplewhowerefightingforfreedom.SoitisthesenseofthiscommitteethatitwouldonlyprovidelegalmeasuresandlegalaidservicestothepeoplewithinthePhilippines?Isthereanyparticularreasonforthis?


MR. SARMIENTO. As the section is phrased and as it is intended, what we have in mind was to providelegalprotectiontothoseinthePhilippines.Rightnowwehavesomanyhumanrightsviolations.Sothemassivenessoftheseviolationswouldentailmuchwork,mucheffort,onthepartofthemembersofthecommission.So,thatalonewouldconsumemuchofitstime,butiftheCommissionerhasasuggestionthatwouldpossiblyincludehumanrightsviolationscommittedabroad,thenhecanmakeitattheappropriatetime.

MR. RAMA. Yes. I am thinking that we should delete the phrase “within the Philippines,” because weshouldnotstoptheHumanRightsCommissionfrommakingrepresentations,say,withtheUnitedStatesgovernmentandsendingsomekindoflegalaidtoFilipinocitizenswhohavebeenpersecutedabroad.

MR. SARMIENTO.MadamPresident,thatisaverygoodsuggestionbecausewhatwehaveinmindwhentheCommissionerraisedthatpointisthecaseofCommissionerCalderonwhowaspersecutedbyMr.Marcos.Thatwaswhytheyhadtoleavethecountryandseekrefugeinothercountries.

MR. RAMA. Sowhenthetimecomes,wouldtheCommissionerbeamenabletodeletethisportion?

MR. SARMIENTO. Thatwillbemostwelcome,MadamPresident.

MR. RAMA. MadamPresident,mayIaskthatCommissionerNatividadberecognized.

THE PRESIDENT. CommissionerNatividadisrecognized.

MR. NATIVIDAD. Thankyou,MadamPresident.Justafewquestionstotheaugustcommittee. I am in agreement with this proposal, although I would like to ask whether in the enumeration of thecommission’s powers and functions it would not be necessary to give the commission visitorial powersbecausecasesofhumanrightsviolationsarealsocommittedinjails,sometimesinprisonsandindetentioncenters.Thecommissionmembersmayverywellbeexcludedfromactuallyandimmediatelyrespondingtoacomplaintbyvisitinganycomplainant.SoIthinkthecommissionshouldhavevisitorialpowersoveranyandalljailanddetentioncentersinthePhilippinessothatatanymomentthepeoplewillknowthatifthereisacomplaint,arepresentativeofthiscommissionmayvisitanycomplainantinanydetentioncenteranddeterminehissituation.


MR. SARMIENTO. MadamPresident,comingfromanexpertoncriminologyandpenologylikeCommissionerNatividad,thatsuggestionwillbemostwelcome.

MR. NATIVIDAD. So at the proper time, I would like to propose the addition of the words“VISITORIALPOWERS,”sothattheCommissionshouldvisitanyandalldetentioncenters-militaryorcivilian.Itshouldbeabletovisitanyofthesejailswithoutsecuringanypermissionfromanyotherauthoritybutbyvirtueofthisconstitutionalfiat.

MR. FOZ. Madam President, although that visitorial powers would, I think, be part of the proposedcommission’spowertoinvestigate,tomakeitclearthatthecommissionwouldhavesuchpower,IagreewithCommissionerNatividadthatitshouldreallybespelledout.


MR. NATIVIDAD. It should be spelled out because investigation is understood to include interrogation,interview,questioningandgatheringofevidence.Butsincethesedetentioncentersarecoveredbyspecificregulationsbanningvisitorsatcertaintimes,Ithinkweshouldspelloutthatthecommissionmayvisitthesecomplainantsinthesedetentioncentersatanytime,ifithasamissionorder.

MR. FOZ. IagreewiththeCommissioner,MadamPresident.

MR. NATIVIDAD.NowtheotherpointthatIwouldliketosayisthatourdraftConstitutionhasmadeaveryvitalinnovationinthefieldofvictimology.

Victomologymeansthestudyofmattersaboutthevictimsofcrimesandabuses. Inanotherpartofourconstitution,wehaveprovidedcompensation forvictimsofhumanrightsviolationsand,perhaps,evencrimes.Eventually,ourgovernmentwillhavetoputupavictimcompensationsystem,avictimcompensationboardoravictimcompensationofficetoimplementthisconstitutionalprovisionofcompensatingvictimsofhumanrightsviolationsandevenofviolentcrimes.IproposethatthesefunctionsoftheHumanRightsCommission,becausethiscommissionwouldbethebestjudgeastowhatdamageshavebeensufferedbythevictims.

MR. SARMIENTO.IthinkthatsuggestioncanwellbecoveredbySection2(5)whichreads:“Itshallperformsuchotherdutiesandfunctionsasmaybefixedbylaw.”

MR. NATIVIDAD. But this is a complex duty. It has to be spelled out because we have to establish theparametershereaspracticedinothercountrieswherethesearespelledoutinspecificterms:Howmuchdowepay?Whatistheceiling?Whenshouldtheybepaid?Whenshouldtheapplicationbemade?Whataretheevidencesthatarenecessarytosupportsuchaclaim?Whatdowedoifthereisinsurance?Thesethingsareverycomplexinnatureasimplementedinothercountrieswhichgivesatisfactiontopeoplewhoarevictimsofcrimes.So,Idonotthinkweshouldmentiontheseingeneralstatement.TheCommissionershouldspecifyitand,Ithink,itenrichesthisconstitutionalprovision.

MR. SARMIENTO. TheCommissionercanintroduceanamendmenttocoverhissuggestionsatthepropertime.

MR. NATIVIDAD. Yes.Intheinvestigationoftheperformanceoftheseinvestigativepowers,whatdoestheCommissiononHumanRightsexercise?Arethesemerelyfact-findingpowersorarepolicepowersbeingusedintheinvestigation?

MR. SARMIENTO. The investigative powers would cover fact-finding and police powers. This is an all-embracingterm.

MR. NATIVIDAD.Thecommissionisgoingtoexercisepolicepowers?

MR. SARMIENTO.Yes.

MR. NATIVIDAD.Iwouldliketoclarifytheparametersofthesepowers.Itisacommoncasenowthatprisonersarebeingdetainedinprisonsbecauseofthefailureofthejudiciarytoheartheircasescomplementedbythefactthattheycannotputupthebailfortheirfreedom.Theyarebeingdetainedinprisonswaybeyondtheperiodofthehighestpenaltythattheycanbepunishedwith.Maytheyappealtothecommissiontobesetfree?


MR. SARMIENTO. Yes.Tome,thatisaviolationoftheconstitutionalrighttoaspeedytrialand,therefore,itisconsideredaviolationofhumanrights.So,thesedetaineescanappealtothecommissionforappropriateaction.

MR. NATIVIDAD.Yes.Thisisbecausethisparticularcaseinvolvesdetention.Butletustakethecaseofthosewhoarevictimsofcrimes.Inthepursuitoftheprosecutionoftheircasestheysufferextremeinconveniencesuchasbeingunawareofthestatusoftheircase.Theyarenotinformedbytheprosecutionagencyofthegovernmentwhethertheircaseispostponedornot.

Theyarenotprotectedfromharassmentoftheirfamilyortheirfriends.Theysometimesareonthevergeofgivinguptheircasebecauseoftheseharassments.Wouldthisconstituteaviolationoftheirrightswithinthepurviewofthepowersofthiscommission?


MR. SARMIENTO. Theycanseekprotectionandguidancefromthecommission.IfwelookatSection2(3),wehavethisprovision:

ProvideappropriatelegalmeasuresfortheprotectionofhumanrightsofallpersonswithinthePhilippines.

So,myhumblesubmissionisthatlegalmeasureswouldcovergivingadvice,assistanceandcounselingtovictimsofthecrimestheCommissionerhasmentioned.

MR. NATIVIDAD.IamthankfulforthatbecauseIwouldlikethattohappen.Letustakeanotherexample.Thereisacomplaintthatthevictimsarebeingharassed.Theyarebeingthreatened;infact,theyhavebeenpreviouslymaltreated.Thepowersofthecommissionaremerelytorequestthemilitaryorthepolicetoprotectthem.ThatiswhatCommissionerTanreferredtoas“recommendatory.”Woulditnotbeadvisableforthecommissiontohavethepowertodirectthesecurityforcesofourcountrytoprovideprotectionforvictimsofhumanrightsratherthanjusttorelyonthegoodgracesandhumanitarianheartsofthesepeopletoprovidetheprotectionforthesaidvictims?

MR. SARMIENTO.IthinkthatwillbeahumaneexpansionofthefunctionsoftheCommissiononHumanRightsthatiscontributingbeneficiallytotheideaofcreatingaCommissiononHumanRights.

MR. NATIVIDAD.ThatiswhyIamtryingtodrawtheanswersfromthecommitteebecausethesevictimsofhumanrightscomplainthattheyarebeingharassedandtheydonotknowwheretogo.Theycannotevengotothecourtstoobtainprotectionfromcertainunitsorindividualsorfrompoliceormilitaryunits.Theydonotknowanybodyinthepoliceormilitaryforces.ButnowtheyhaveanewhopebecauseoftheexistenceofthisCommissiononHumanRights.Butifthecommissionmerelyrequeststhattheybegivenprotection,themilitarypoliceunitwillthensay:“Thatisnotinourprioritybecausewehavemanyotherjobs and missions to accomplish.” So, may I draw the answer from the committee? Does the committeethinkthatitmaybeadvisablethatincasesofthisnature,thecommission,beingaquasi-judicialbody,maydirectthepoliceforcestoprovideprotectionforthem?Thecommissionshouldnotrequestandnotmerelyrecommendbutdirectlyprovidesecurityforcesforacertainperiodoftimeasinothercountries.

MR. SARMIENTO.CommissionerRigosaswellasCommissionerGarciaarenoddingtheirheads.IthinkIcan


speakinbehalfofthecommitteethatthefunctionswouldcovertheCommissioner’ssuggestion.

MR. NATIVIDAD. Can the members of the commission enjoin people from harassing people? Can themembersofthecommission,undertheenumerationof itspowershere,notonlyprovideprotectionforcomplainantsbutmayalsoenjoinpeopleandsay,“Stopviolatingtherightsofthesepeople’?Cantheydothatunderthisenumerationofduties?

MR. SARMIENTO.Ifthatisnecessarytoprotecthumanrights,whynot?

MR. NATIVIDAD.Couldwenotspecifythismoreinanamendment-thattheymayenjoin;theymayprotect?What I have been saying is if these vital functions- to protect them directly and to enjoin people fromcontinuingthecommissionofviolationofhumanrights-willthesestillneedalittleamendment?

MR. SARMIENTO.Regardingtheenumerationofadditionalfunctions,Iwillconferwiththemembersofthecommittee-thechairmanandthevice-chairman.

MR. NATIVIDAD.Yes.

MR. SARMIENTO.ButpersonallyIwillfullyendorsetheCommissioner’ssuggestion.

MR. NATIVIDAD. Iaminterestedinseeingthatit isnotmerelyapapertigerbutsomethingthathasgotteethtobitebyenjoiningpeoplenottocontinueinthecommissionofviolationofhumanrightsandbydirectingprotectiontopeople.Thankyou.

MR. RAMA.IaskthatCommissionerdeCastroisrecognized.

MR. DE CASTRO.Thankyou,MadamPresident.Membersofthecommitteeandthehonorablechairman,IthinkthereisalittletypographicalerrorinCommitteeReportNo.37.Iappearasoneofthesponsors;Iamnot.Also,Iamnotamemberofthecommittee,soIwillrequestthatmynamebedeleted.

Onthequalificationsof thechairmanandthecommissionersof theCommissiononHumanRights,oneshouldhavebeenamemberoftheBarforatleast10years.Cananyotherpersonotherthanalawyernotbeachairmanormemberofthiscommission?

MR. SARMIENTO.Sincethisworkwill involve legal issuesand legalmatters,wedeemed itbest that thechairmanshouldbealawyer,andsowiththemembers.Butmypersonalfeelingisthat,iftherearelaymenorpersonswhoarequalifiedtobehumanrightsadvocateslikenuns,priestsandpsychologists,maywenotincludethem?


MR. DE CASTRO.So,fromtheCommissioner’sanswer,notonlymembersoftheBarcanbeachairmanofthecommission.

MR. SARMIENTO.Butthatismypersonalposition;Istillhavetoconferwiththecommitteefordecision.


MR. FOZ. Actually, that was the feeling of the committee regarding these qualifications but we wouldwelcomesuggestionsonthisportionofthisprovisionofthedraft.

MR. DE CASTRO.Thankyou.Inregardtothequalificationsforchairmanandmembersofaconstitutionalcommission, it is stated:‘persons of integrity, of probity, of independence of mind, etc.” And yet in thiscommitteereport,wefindthatachairmanoracommissionercanjustbeamemberofthePhilippineBarwithatleast10yearsofpractice.Whetherhehastheprobityortheintegrityisofnoissue.Isthatthemeaningofthisqualification?

MR. SARMIENTO. Maybeatanappropriatetime,wecanwelcomesuggestionsliketheinclusionofwordslike“men of integrity, honesty and independence of mind.” So, we will welcome any suggestion in thatregard.

MR. DE CASTRO.ThemorebasicquestionIhaveinmymindis:WhyconstitutionalizetheHumanRightsCommission?Willitnotbebetteriftheyworkundertheexecutive?

MR. SARMIENTO.AsIhavestatedinmysponsorshipspeech,thereisaneedforaspecializedbodytohandlehumanrightsviolations.Duringmartiallaw,wehadmanycasesofhumanrightsviolations.Evenuntilnow,wehavecasesofsalvaging,disappearances,hamlettingwhicharecommittedallthroughoutthecountry.So,becauseofthemassivenessofthesehumanrightsviolations,Ithinkthereshouldbeabodythatwillconducttheinvestigationandsetappropriateactionstostopthecommissionofthesehumanrightsviolations.

MR. DE CASTRO.Cannottheexecutive,evenwithoutconstitutionalizingthisbody,choosetherightpeoplewiththenecessaryexpertisetoconductthenecessaryinvestigationalloverthePhilippines?

MR. GARCIA. Precisely,oneofthereasonswhyitisimportantforthisbodytobeconstitutionalizedisthefactthatregardlessofwhoisthePresidentorwhoholdstheexecutivepower,thehumanrightsissueisofsuchimportancethatitshouldbesafeguardedanditshouldbeindependentofpoliticalpartiesorpowersthatareactuallyholdingthereinsofgovernment.Ourexperienceduringthemartiallawperiodmadeusrealizehowpreciousthoserightsareand,therefore,thesemustbesafeguardedatalltimes.

Secondly,asImentionedearlier,wealsofeltthatitwasimportanttoeducatethepeoplebecausehumanrights,inasense,cannotbegiven.Peoplehavetoknowwhattheserightsareandtheyhavetosafeguard,upholdandevendefendtheserights.Thiscanonlybedoneifthereisacontinuinghumanrightseducationprogram.So, thosearethebasic reasonswhywewouldproposethat thisbe in formofaconstitutionalcommissionthatwouldbeabovethechangesoffortunesofpoliticalpartiesinthiscountry.

MR. SARMIENTO.MayIjustvolunteertheinformationthatinNewZealandtheyhaveaconstitutionalbodyknownastheCommissiononHumanRights.However,itsspecificfunctionidlimitedtoprovidingeducationandconductinginformationcampaign.Butasweknow,NewZealandisdifferentfromourcountry.Wehaveourownpeculiarities.

Here inourcountrywehaveviolationsmoremassivethanthosecommitted inNewZealand.So, I thinkthereisaneedforthisCommissiononHumanRightsandfortheexpansionofitsfunctions.

MR. DE CASTRO. There is no question that there is a need for this commission. My question is: Whyconstitutionalize it? When we include this commission under the executive department, then theCommissionerwillmentionpolitics,andsoon.Whenwetalkofthepresidencyespeciallyinourproposed


constitutionalprovisionespeciallyofaPresidentwhoshallhavenoreelectionwhatsoever,wedonottalkaboutapoliticianbutofastatesmanwhoshalllookafterthewelfareofhiscountry.

SowhenaPresidentcreatesthiscommissionandshallbeunderhim,heshouldlookatitastheprotectorofthiscountry.

MR. GARCIA.MayIanswerthatpoint,MadamPresident?

THE PRESIDENT.TheCommissionermayproceed.

MR. GARCIA.Iwouldliketostatethisfact:PreciselywedonotwantthetermorthepoweroftheCommissiononHumanRightstobecoterminouswiththePresident,becausethePresident’spowerissuchthat ifheappointsacertaincommissionerandthatcommissionerissubjecttothePresident,therefore,anyhumanrightsviolationscommittedunderthatperson’sadministrationwillbesubjecttopresidentialpressure.Thatiswhatwewouldliketoavoid-tomaketheprotectionofhumanrightsgobeyondthefortunesofdifferentpoliticalpartiesoradministrationsinpower.


MR. DE CASTRO.IampursuingthequestionofCommissionerNatividadandthecaseshegaveasexampleswhich necessitated the provision for security.Would it not be better if the commission were under theexecutivebecausethearmedforcesandthepoliceareunderthePresidentanditwouldbeeasiertoprovidethenecessarysecurityifitwerethePresidentwhowillorderthem?

MR. GARCIA.CouldIanswerthat?Thatistruebut,atthesametime,ifthePresidentsolelyhadthatpower,thePresidentcouldalsowithholddoingthatfunctionbecauseitwouldbesubjectagaintothediscretionorthejudgmentofthePresident.

Here we have a commission entrusted with the task of protecting human rights; and therefore, if it sodeemsandjudgesnecessarythattherewillbemilitaryprotectionagainstthevictimsofharassment,thenthatcommissioncouldprovidethatprotection,independentofwhattheadministrationinpowerthinks,becausenormallytheywouldbesympatheticwiththeirarmedforces.

ME. DE CASTRO.Cansecuritybeprovidedthroughthemilitaryandthepolice?Iaskedso,becausetheonewhowillprovidetheprotectioniscertainlythepoliceorthemilitary.

MR. GARCIA.Yes.

MR. DE CASTRO.Supposethemilitarywouldsay,‘Wearetoobusy;wehaveplentyofproblemsotherthantoprovidesecurity.”

MR. GARCIA.Precisely, theCommissiononHumanRightswouldbeempoweredtodirectthosemilitaryofficersconcernedtogiveprotectiontohumanrightsvictimsortovictimsofharassmentortotownswhicharesubjectedtosomekindofdifficultiesbecauseofspecialcircumstancesinthearea.

MR. DE CASRTO.Thereisnoquestionabouttheauthoritythatwillbegiventhecommissiontodirectthearmedforcesorthepolicetoprovidesecurity.So,incasetheysaythattheyaretoobusyandtheydonot


havetherightpeople,webetterleaveittotheexecutive.ItwillbeverydifferentifitisthePresidenttellingthemsinceheistheCommander-in-Chief.

MR. GARCIA.Butifweempowerthiscommission,wewould,therefore,giveitauthoritytodirectthearmedforcesandtogiveprioritytotheirtasks.Thearmedforcescoulddropthisassignedtaskiftheyarereallybusyindoingotherthingsoranewdetachmentcanbesenttodothisjobofgivingprotectionforhumanrightsvictims.Ontheotherhand,theycoulddropothertasksinordertoperformthisnewlyassignedduty.

MR. SARMIENTO.Inadditiontothat,thecommissionisnotprecludedfromsecuringtheassistanceofthePresident.AsIstatedbefore,itwillworkcloselywithvariousgovernmententities.

MR. DE CASTRO.Wetalkofthevictimsofhumanrightsandtheywillhavetocomplaintothiscommission,isthatright?

MR. GARCIA. Yes.

MR. DE CASTRO. So, this commission can investigate. What then will be the work of the ombudsmanwhichwecreatedtoinvestigateallcomplaintsreceivedfromallsectors?Therewillbetwobodiesnow:TheCommissiononHumanRightsandtheOmbudsman.

MR. MONSOD.IftheCommissionerstillrecalls,byvirtueoftheRegaladoamendment,weincludedaphraseinthesectiononthefunctionsoftheombudsmantocoverhumanrightsoffensesthatarecivilandpoliticalinnature.Butduringthediscussion,wealsosaidthattherewasapendingproposalforaCommissiononHumanRights,wewilladjustthesectiononombudsmantoremovetheoverlappingoffunctions.

MR. DE CASTRO. Whyshouldwecreatetwobodieswhenonebodyisenough?

MR. GARCIA. Thiscommissionhasaveryprecisetask.ItsinternationalinstrumentswouldbetheUniversaldeclaration of Human Rights, the International Covenant on Civil and Political Rights, and the recentlyconcludedDeclarationofTortureof1985.Thecommissionhasaveryspecificfunctionwhichistheprotectionofcivilandpoliticalrights.Duetotheexperienceof14yearsofmartialrule,wewanttoensurethathereafterhumanrightsinthiscountryarenotviolated,andtherefore,providethisveryspecificbodywiththefunctiontoensurethesafeguardingoftheserights.

MR. MONSOD. MayIalsoaddthateveninthediscussionontheombudsman,werecognizethatthescopeofthefunctionsoftheombudsmanwasalreadyverywide,evenwithouttheinclusionofthefunctionsthatarenowbeingproposedfortheCommissiononHumanRights,butwewantedafall-backpositionincasetherewasnoapprovaloftheCommissiononHumanRightsseparately.

MR. DE CASTRO. ThematterofinvestigatingallcomplaintsalloverthePhilippinesiscertainlybroad.Verysoon we will have to create a commission on graft and corruption because that is a very broad subjectmatterwhichaffectstheverysocialfoundationofourcountry.



MR. SARMIENTOThatiswhywehavethisombudsmantoprotectthepeople,thepurposeofwhichistoprotectourpeoplefromgraftersandtopromoteefficiencyandpreventmismanagement.

MR. DE CASTROAlso,toinvestigatealltypesofcomplaintswhichwillincludecomplaintsagainstviolationofhumanrights.

MR. SARMIENTOTheinvestigationofhumanrightswillbeconductedbytheCommissiononHumanRights.Mattersinvolvinggraftandcorruption,mattersthatwillpreventwasteandmismanagementwillbehandledbythecriticandwatchdog,theombudsman,andthiswasclearlystatedandexplainedbythehonorableCommissioner,JusticeColayco.

Soifwegivethatadditionalpower,thenwewillbeexpandingthepowersoftheombudsmantoapointthatitwillbeineffective.

MR. DE CASTROLetusgotothepolicepowerwhichCommissionerNatividadmentioned.

Whenthereisaviolationofhumanrightsandaninvestigationistobeconducted,wouldthisinvestigationbesomesortofaninvitationforthatviolator?Howwouldtheinvestigationbeconducted?

Suppose we want to investigate“A” on the complaint of“B” for violation of human rights, how will weinvestigate“A”?

MR. SARMEINTOIfwelookatSection2(2),wehavethisprovision:

That theCommissionshall have the power to issue“subpoena”and“subpoenaducestecum”tocompeltheattendanceofanypartytoitsproceedings.

Thiswouldinvolveproceedingsthatwillcoverinvestigationsandinquiries.

MR. DE CASTROLetusproceedwiththepolicepowerwehave.Whenweinvestigate,certainlyitwilltakealittletime.Perhapsthatmanunderinvestigationcouldbedetainedforaperiodofsixhoursbutwhenthecaseisserious,theinvestigationcouldlastforabout18hours.DoestheCommissionerforeseethenumberofhoursfordetainingsomebodytobeinvestigated?

MR. SARMIENTO Nobody could depend upon the efficiency of an investigator. But even then, thatinvestigatorhastorespecttherightsofthatpersonwhoisundercustodialinterrogationsorunderanyformofinvestigations,asprovidedinourArticleontheBillofRights.

MR. DE CASTROSo,onthenumberofhoursforinvestigation,westatedthatminoroffensesbeinvestigatedwithinsixhoursbutforseriousoffenses,couldittakeabout18hours.Willthatbetherule?

MR. SARMIENTOWe have this formula of 6-9-18, within which the case has to be filed with the properjudicialbody.Butaspointedoutbyourhonorablechairman,thisinvestigationistogetinformationwhichisnotinformofacustodialinterrogationconductedbypolicemenormilitarypersonnel.


MR. DE CASTRO. Afterashortinvestigation,themancansay,“IwanttogohomenowsoIcantakecareofmychild.”

MR. SARMEINTO.Ifnocrimehasbeencommitted,hewillbeallowedtogohome.

MR. DE CASTRO.Cannotthiscommissionrequestsomeotherinvestigativeagenciesofthegovernment,liketheNBI?

MR. SARMIENTO. AsIsaid,thecommissionwillworkintimatelywithvariousgovernmentagencies.ItmighteveninvitetheCommissionerwhoisanexpertonpolicematterstoassistthecommission.Rightnow,thePresidentialCommitteeonHumanRightsisworkingcloselywiththeNBIandothergovernmentagencies.

It might solicit the assistance of an expert on victimology, like the Commissioner Natividad andotherexpertsonpenology.

MR. DE CASTRO.Undersection2(1),Icanseethatabout90percentormoreofthepeopletobeinvestigatedareeitherthemilitaryorthepolice.

MR. SARMIENTO. No.

MR. DE CASTRO.Hasthecommitteeestimatedthatnumber?

MR. SARMIENTO. Theinvestigationisnotlimitedto…

MR. DE CASTRO. Yes,butinactualpractice,itwillbeabout90percentofthemilitaryorthepolice.Hasthecommitteethoughtofthat?

MR. SARMIENTO.Wehavethatinmind,buttherewillalsobeviolationscommittedbyprivateparties.

MR. DE CASTRO. Yes.

MR. SARMIENTO.Rightnowwecannotmakeanynumericalpercentage.

MR. DE CASTRO. Thatisabout10percent.


MR. SARMIENTO.Itishardtomakeanapproximation.

MR. DE CASTRO.IfthePresidentistheCommander-Chiefofthearmedforcesandthepolice,thenitwillbemuchbetterifthePresidentistheonewhoshouldheadthiscommission.WillthisprovisionincludetheNPAsintheinvestigation?

MR. SARMIENTO.InmyreplytothequerymadebyCommissionerNieva,IansweredthattheinvestigationwouldcoverviolationscommittedbytheNPAs.


MR. DE CASTRO.HowwilltheNPAsbeinvestigated,byinvitationorbysubpoenaducestecum?

MR. SARMIENTO. Wearenowdealingondetails.Wewillleavetothecommissiontheimplementationofitstask.

MR. DE CASTRO.Themembersofthiscommissionwillhaverestrictions,likethechairmanandmembersoftheCOA,theCivilServiceandtheCOMELEC-theycannotpracticetheirprofession.

MR. SARMIENTO.Yes.

MR. DE CASTRO.IamnowpursuingthequestionofCommissionerRodrigo.Section2(3)states:“provideappropriatelegalmeasuresfortheprotection,”andline9reads:“forlegalaidservices.”IsthisnotpracticingtheprofessionwhentheCommissionerrenderslegalservices?

MR. SARMIENTO.MayIreplytothat?Thatiscorrect,butitissadtosaythatduringmartiallaw,manyofourlawyerswouldhavehandledpoliticalcasesinvolvingtheviolationsofpoliticalandcivilrights,butmanyoftheseindigentpersonsweredeprivedofexpertiseoflegalassistance.Hence,it isnowthetaskofthiscommissiontodeputizehumanrightsorganizations,legalaidorganizationstoprovidelegalassistance.Iknowitisthetaskoflawyersbutwehavetobehonestenoughtoadmitthatsomelawyers-Iamsayingall-areveryselectiveinhandlingcases.

MR. DE CASTRO.IamveryhonestenoughwhenIaskthesequestions.Letussaythatthecommissionersandthechairmancannotreallypracticetheirlegalprofession,buttheycandeputizepeoplewhomaypracticetheprofession.AmIcorrect?

MR. SARMIENTO.WhatdoestheCommissionermeanwhenhesays“theymaydeputizethepeoplewhomatpracticetheprofession?”DoestheCommissionermeanthattheymaydeputizelawyerstohandlecasesinvolvinghumanrightsviolations?

MR. DE CASTRO.Yes,thankyou.

MR. SARMIENTO.Thankyou.

MR. RAMA.MadamPresident,IaskthatCommissionerBengzonberecognized.

THE PRESIDENT.CommissionerBengzonisrecognized.

MR. BENGZON. Line10ofSection1mentions“membersof theBar forat least tenyears.” I suppose theCommissionermeansnotjustbeingamemberoftheBarbutheshouldhavepracticed.

MR. SARMIENTO.Yes.

MR. BENGZON.Hence,amemberof theBarwhonothadthepracticeof law isnotqualifiedunderthisarticle.

MR. SARMIENTO. First, we have to clarify what we mean by practice. What we have in mind are themembersoftheBarwhohavebeenactivelyengagedinthepracticeoflaw,andthiswouldincludeevenlawprofessors.


MR. BENGZON.Thatiscorrect.Iamnotreferringtoalawyerwhohasbeeninbusiness.Thatmeanshehasnotbeeninthepracticeoflaw.

MR. SARMIENTO.Alawyerwhohasbeenengagedinbusinessbutiscommittedtothepromotionofhumanrightscanbeamemberofthiscommission.So,weshouldnotexempthimfrombeingamemberofthiscommission.

MR. BENGZON.Thatispreciselymyquestion.IstheCommissionernotlimitingthisonlytoamemberoftheBarengagedinthepracticeoflaw?

MR. SARMIENTO.No.

MR. BENGZON.So,therequirementisthataslongasheisalawyerbyprofession,heisqualified.

MR. SARMIENTO. Yes.

MR. BENGZON. Section2(1)states“investigateallformsofhumanrightsviolations,”andline22includesthephrase“privateparties.”Istheintentiontoincludethemaltreatmentofchildren?

MR. SARMIENTO. Thatispossible.

MR. BENGZON.No.Iamnottalkingofpossibilities.Iamtalkingwhetherornotitisintentofthecommittee.Forexample,aparentwhomaltreatshischild,wouldthatcasebecoveredbytheprovision?


MR. SARMIENTO. Whatwehaveinmindwhenweformulatedsection2(1)areviolationsofcivilandpoliticalrights. My understanding is that maltreatment of children does not fall within the concept of civil andpoliticalrights;somaybeanappropriategovernmentagencycanhandlethisproblem.

MR. BENGZON.ThatismydifficultybecauseIthinkthereisahairlinedistinction.IwouldliketogivetheCommissioneranotherexample.Letustake,forexample,aladywhohasdetainedasaprisonerandthenwasmolested.Here,acrimeagainstchastitywascommitteduponher.Whowouldhavejurisdictionoverthatcase?

MR. SARMIENTO. IthinkthatwillbecoveredbytheCommissiononHumanRightsbecauseherewehaveadetaineewhoserightshavebeenviolatedbecauseshehasbeenmolested.

MR. BENGZON.Letus take theexampleofa ladywhowasdetained for thecrimeofmurder.Whileshewasinjail,shewasmolested.WhattheCommissionerissayingisthatthatparticularinstanceofherbeingmolestedfallsunderthejurisdictionoftheCommissiononHumanRights.So,inthisinstance,therewillbetwocases.Thefirstoneisthecaseagainstthepolicemanwhomighthavemolestedher.ThiscasewillfallundertheCommissiononHumanRights.Thesecondcaseisacaseofmurderforwhichthewomanwasoriginallyaccusedofanddetained.AmIcorrectinthat?


MR. SARMIENTO. Yes.

MR. BENGZON.Allright.

MR. GARCIA.Iwouldliketomakeaclarificationonthatpoint.AlthoughmaltreatmentorthecrimesthattheCommissionermentionedmayfallwithintheprovinceofthiscommission,theprimacyofitstaskmustbemadeclearinviewoftheimportanceofhumanrightsandalsobecausecivilandpoliticalrightshavebeendeterminedbymanyinternationalcovenantsandhumanrightslegislationsinthePhilippines,aswellastheConstitution,specificallytheBillofRightsandsubsequentlegislation.Otherwise,ifwecoversuchawideterritoryinarea,wemightdiffuseitsimpactandtheprecisenatureofitstask,hence,itseffectivitywouldalsobecurtailed.

So,itisimportanttodelineatetheparametersofitstasksothatthecommissioncanbemosteffective.

MR. BENGZON.Thatispreciselymydifficultybecausecivilandpoliticalrightsareverybroad.TheArticleontheBillofRightscoverscivilandpoliticalrights.Everysinglerightofanindividualinvolveshiscivilrightorhispoliticalright.So,wheredowedrawtheline?

MR. GARCIA. Actually,thesecivilandpoliticalrightshavebeenmadeclearinthelanguageofhumanrightsadvocates,aswellasintheUniversalDeclarationofHumanRightswhichaddressesanumberofarticlesontherighttolife,therightagainsttorture,therighttofairandpublichearing,andsoon.Theseareveryspecificrightsthatareconsideredenshrinedinmayinternationaldocumentsandlegalinstrumentsasconstitutingcivilandpoliticalrights,andthesearepreciselywhatwewanttodefendhere.

MR. BENGZON. So, would the Commissioner say civil and political rights as defined in the UniversalDeclarationofHumanRights?

MR. GARCIA. Yes, and as I have mentioned, the International Covenant of Civil and political Rightsdistinguishedthisrightagainsttorture.

MR. BENGZON.Soastodistinguishthisfromtheotherrightsthatwehave?

MR. GARCIA. Yes,becausetheotherrightswillencompasssocialandeconomicrights,andthereareotherviolationsofrightsofcitizenswhichcanbeaddressedtothepropercourtsandauthorities.

MR. SARMIENTO.MayIjustmakeanadditionalcomment?Ithinkonewhohasbeenmolestedwhileunderdetentioncanbe investigatedby thiscommission.Themolestationwouldpartakeof torture inanotherform.Itcouldhavebeendonetoextractinformationortoharass.

MR. BENGZON. Istherealegaldefinitionofthatparticularcase?ThisisthefirsttimeIhaveheardofthemolestationofaladypartakingoftorture.

MR. SARMIENTO.Duringthemartiallaw,wehandledcasesinvolvingwomendetaineeswhoweremolestedforpurposesofextractinginformationortoharassortosoftenuphercommitment.So,IthinkthatkindofmaltreatmentwouldfallunderthescopeoftheCommissiononHumanRights.

MR. BENGZON.Dowehavejurisprudenceordowehavedefinitionsenunciatedbyinternationalbodiesas


towhatisthescopeofhumanrightsoncrimesagainstchastitywhichpartakeofthenatureoftorture?DowehaveanydefinitionofjurisprudencetothateffectastheCommissionerhasstated?IaskbecauseIknowthatcrimesagainstchastityarecoveredbytheRevisedPenalCodeandareprosecutedaccordingtothelawsoftheland.Thatispreciselyoneofmyquestions.

Letussayacrimeagainstchastityiscommittedagainstapersonwhoisdetainedbecauseofanothercrime.Iamnoteventalkingofthereasonforthedetention,beitpoliticalornot.AsIsaid,theladywhowasaccusedofmurderhadnomoneytobailherselfout,soshehadtostay in jail.Thejailkeepermolestedher.Thatparticularcrimethatiscommittedagainstherisacrimeagainstchastityforwhichthejailkeeperhastobeanswerablefor.Whowillinvestigatethecase?Willitbethefiscal,theombudsman,ortheCommissiononHumanRights?

WhatIwouldliketofindoutaretheparametersofthefunctionsofthecommission.Whenwegetintoaproblemlikewherewewouldhavedifficultyindelineatingit,thenwegetintothewiderscopeofeveryrightasstatedintheBillofRights.

MR. SARMIENTO.AsIsaid,wewillgiveprimarytocivilandpoliticalrights.Sincethiswillinvolveotherissuespossibly,thecommissioncanworkcloselywithothergovernmentagenciestoundertaketheprosecutionofofficialsguiltyofthiscrime.

MR. BENGZON.TheprincipalreasonwhyIambringingupallthesedifficulties,includingthefirstquestionIhavewithrespecttothemaltreatmentofchildrenisthattheseareproblemswhichhavetobereallyspelledout.AstheCommissionersaid,thesehavetobecoordinatedwithotheragenciesofthegovernment.Wecannot obviously spell these things out in the Constitution. But how would we word it, if we decide toconstitutionalizethiscommission?HowdowewordSection2insuchawayasnottocreateaconfusionortocreateanoverlappingoffunctionswiththeotheragenciesofgovernment?

MR. SARMIENTO.Toavoidconfusion,thecommissionwillbeauthorizedtodefineitsfunctions.IunderstandthatCommissionerNolledohasanamendmenttothiseffecttoavoidconfusion.

MR. BENGZON.So,wewillauthorizethecommissiontodefineitsfunctions,and,therefore,indoingthatthecommissionwillbeauthorizedtotakeunderitswingscaseswhichperhapsheretoforeoratthismomentareunderthejurisdictionoftheordinaryinvestigativeandprosecutorialagenciesofthegovernment.AmIcorrect?

MR. GARCIA.No.Wehavealreadymentionedearlierthatwewouldliketodefinethespecificparameterswhichcovercivilandpoliticalrightsascoveredbytheinternationalstandardsgoverningthebehaviorofgovernmentsregardingtheparticularpoliticalandcivilrightsofcitizens,especiallyofpoliticaldetaineesorprisoners.Thisparticularaspectwehaveexperiencedduringmartial lawwhichwewouldnowliketosafeguard.

MR. BENGZON.Then, IgobacktothatquestionthatIhad.Therefore,whatwearereallytryingtosayis,perhaps,atthepropertimewecouldspecifyallthoserightsstatedintheUniversalDeclarationofHumanRightsanddefinedashumanrights.Thosearetherightsthatweenvisionhere?



MR. GARCIA.Yes.Infact,theyarealsoenshrinedintheBillofRightsofourConstitution.Theyareintegralpartsofthat.

MR. BENGZON.Therefore, istheGentlemansayingthatalltherightsundertheBillofRightscoveredbyhumanrights?

MR. GARCIA.No,onlythosethatpertaintocivilandpoliticalrights.

M. BENGZON.Onpage2,line7,willtheCommissionerkindlyexplainthemeaningofthephrase“Provideappropriatelegalmeasuresfortheprotectionofhumanrights”?cantheylegislate?Whatcanthecommissiondo?

MR. SARMIENTO.Whatwehadinmindwhenweformulatedthisprovisionisthegivingoffreelegalaidservicestoindigentsbutwithoutforeclosingthepossibilityofaddingotherservicesandothermeasures.

MR. BENGZON.So, thephrase“appropriate legalmeasures”wouldactuallymeanservices inadditionorapartfromlegalaid?


MR. BENGZON.Suchaswhat?

MR. SARMIENTO.Forinstance,wehaveintheArticleonBillofrightsindemnificationandrehabilitationofvictimsofhumanrightsviolations.Thiscommissionwillassistvictimstobeindemnifiedandrehabilitatedbythegovernment.Sothiswouldbecoveredbythefunctionofprovidingappropriatelegalmeasuresfortheprotectionofhumanrights.

MR. BENGZON.Doesthecommitteeenvisiongivingquasi-judicialpowerstothiscommissioninviewofitspowerstoissuesubpoena,subpoenaducestecum,compelattendance,andcitepartiesforcontempt?

MR. SARMIENTO.Inreplytoapreviousquery,Isaidthatthecommissionisaquasi-judicialbodywiththepowertoissuesubpoena,subpoenaducestecumandthepowertocompelpartiestoproducenecessarydocuments.

MR. BENGZON.Istillhavealotofdifficultiestryingtodelineatetheparametersbetweenthefunctionsofthiscommission,thecomplaintfunctionsoftheombudsmanandthefunctionsoftheordinaryprosecutorialagenciesofthegovernment.IhopethatthecommitteecanrewordSection2(1).


MR. SARMIENTO.Maybe,atanappropriatetime,theCommissionercanintroducehisamendmenttoclarifythismatter.

MR. BENGZON. Thankyou.


MR. RAMA.MadamPresident,IaskthatCommissionerTingsonberecognized.

THE PRESIDENT. CommissionerTingsonisrecognized.

MR. TINGSON.MadamPresident,mayIaddressthisquestiontoCommissionerRigos,please?

Doesheagreethatinessencepracticallyallviolationsofhumanrightsareviolationsagainstmorallaw?

REV. RIGOS. Yes,MadamPresident.

MR. TINGSON. DoesCommissionerRigosarguethat,assomebodysaid,allthemoralillsoftheworldcanbe cured by two tablets and the two tablets were those that Moses carried with him on which theTenCommandmentswerewritten?

REV. RIGOS. Ibelieveso,MadamPresident.

MR. TINGSON. Afterhearingthat,mayIthenaskthechairmanofthecommitteethefollowingquestion?ThereisinourproposedDeclarationofPrinciples,Section2whichstates:

The Filipino people commit themselves to peace, equality and freedom. Theyrenouncewarasaninstrumentofnationalpolicyandadoptthegenerallyacceptedprinciplesofinternationallawaspartofthelawsoftheland.

Weunderstand,ofcourse,thatwearesignatorytotheUnitedNations,thatwhatevertheUnitedNationsdrawupespeciallyonthelineofhumanrights,weautomaticallywouldsay“yes”.Isthatnotthestanceofourcountryalongthatline?


MR. TINGSON. I an impressed, of course, with this booklet that was distributed to us by the Secretary-Generalentitled,“UniversalDeclarationofHumanRights.”ItisimpressivethattheArticleonSocialJusticeandotherprovisionsintheConstitution-andsomeofthemhavealreadybeenapprovedonThirdReading-haveadoptedsomeoftherightstherein;forexample,mothersandchildrenareentitledtospecialcareandassistanceinlinewiththequestionofCommissionerBengzonawhileago.Educationshallbefree,atleastintheelementaryandfundamentalstages,andcompulsory.TheseareallinournewConstitutionnow.Allhumanbeingsarebornfreeandequalindignityandrights.Theyareendowedwithreasonandconscienceandshouldnotacttowardsoneanotherinthespiritofbrotherhood.Everyonehastherighttolife,liberty,securityofperson;ofcourse, intheArticleonSocialJustice it isprovidedthatnoperson inourcountryshouldbedeprivedoflifeandpropertywithoutdueprocessoflaw.

WhatIamtryingtoaskthecommitteeis:WoulditthenentertainanimportantamendmenttotheeffectthatthisConstitutionshalltakecognizanceoftheUniversalDeclarationofHumanRightsandthattheadjudicationofcasesinviolationofhumanrightsinthiscountrywouldbeinconformitywithsaiddeclaration?

MR. FOZ. Wemightconsideritatthepropertime.

MR. TINGSON.Thankyouverymuch.


Madam president, when President Aquino assumed office, several leaders of organizations who are notGod-fearingandwhoseideologywasdiametricallyopposedtoourChristianideology,wereimmediatelyreleasedfromprison.Forthis,she isbeingcriticizeduptonowbecausesomepeoplebelievethattheseleaderswereouttodestabilizethegovernmentandourcountry.Andyet,ourPresidentdidnothesitatetoreleasethem.Wasitbecauseshebelievesthathavingbeenseparatedfromtheirwivesandchildrenfor10yearsorso,theirrightsashumanbeingswereviolatedandnotbecausesheissympathetictotheirpoliticalideology?

MR. SARMIENTO.MayIreplytothat,MadamPresident?

MR. FOZ.Ithinkso,MadamPresident.

MR. SARMIENTO.ThePresidentreleasedthesepersonsunderdetentioninthespiritofreconciliation.ThatwastheprimaryconsiderationwhichimpelledthePresidenttoreleasethesepersons.

MR. FOZ.Inaddition,ifIrememberright,thereleasewasmadebecauseuptothetimeoftheirrelease,therehadbeennoformalchargesfiledagainstthemincourt. Inotherwords,theyhadbeenunderdetentionforsomanyyearswithouttheauthoritiesfilingformalchargesagainstthem.Theyhadlongbeenunderdetentionandtheydonotevenknowwhatchargestheywerebeingheld.Onlyafewofthemhadchargesbeforethemilitarytribunals.

MR. TINGSON.Andthatisaseriousviolationofhumanrights.


MR. TINGSON.Thankyouverymuck.ButmayIaskagain:willthesponsorentertainanamendmenttowardsmentioningtheUniversalDeclarationofHumanRights?

MR. FOZ.Wewillconsiderit.


MR. TINGSON.Thankyou.

MR. SARMIENTO.MayIjustcommentonthestatementmadebyCommissionerTingson?IntheUniversalDeclarationofHumanRights,wehaveanenumerationofeconomic,socialandculturalrights.ViolationsoftheserightswillnotbewithinthedomainoftheCommissiononHumanRights.Aswestatedawhileago,thiscommissionwillgiveprimacytoviolationsofcivilandpoliticalrights.

MR. TINGSON. Wewillsoformulatetheamendmentthenastoconformtowhatthesponsorsaidawhileago.

MR. SARMIENTO.Thankyou,MadamPresident.

MR. RAMA.MadamPresident,thenextregisteredspeakerisCommissionerdelosReyes.


THE PRESIDENT. CommissionerdelosReyesisrecognized.

MR. DE LOS REYES.MadamPresident,IamyieldingmytimetoCommissionerPadilla.

MR. PADILLA.Thankyou.

THE PRESIDENT. CommissionerPadillaisrecognized.

MR. PADILLA.TheAquinogovernmenthastheCommissiononHumanRightsundersenatorDiokno,andtheidea,Ithink,istoinvestigatepriororundiscoveredviolationsofhumanrightsduringthedictatorialregimeof the past administration, particularly tortures of arrested and detained persons, including, of course,disappearances,salvaging,hamletting,etcetera.IsthefunctionofthisCommissiononHumanRightsthesamebuttobeappliedtofutureviolationsbytheregime,whethertheybethepolice,themilitary,theNPA,publicofficialsorevenprivatepersons?Isthattheconceptorobjectiveofthisarticle?

MR. SARMIENTO.MadamPresident,thecommissionhasadditionalfunctions.ThePresidentialCommitteeonHumanRightshadlimitedfunctions.Inthiscommitteereport,weaddednewfunctionsthepurposeofwhichistoinvestigateallformsofhumanrightsviolations,pastandpresent.

MR. PADILLA.ButIsupposethepastistobecoveredbythiscommission.


MR. PADILLA.Ofcourse,wespeakofhumanrights,and Ibelieve itmeanspersonalor individual rights.ManyofthesearefoundintheBillofRights,butwedistinguishfromcivil,political,economic,culturalandotherrights.


MR. PADILLA.TheviolationsunderthePenalCodeallfallunderhumanrights.

MR. SARMIENTO. Yes,MadamPresident.ButtheseviolationsoftheprovisionsoftheRevisedPenalCodecanbewellhandledbyappropriategovernmentagencies.

MR. PADILLA. Thatismypoint.Doesnotthesponsorbelievethatfortheadequateprotectionandrepressionofviolationsofhumanrights,weshouldencourageamoreeffectivepoliceprotectionandsuppressionofcrime,andaspeedyandefficientadministrationofjusticeunderthejudiciary?


MR. PADILLA.Ifthisprotectionandevenpromotionofhumanrightscanbeeffectivelydonebyanimprovedpolice service, as well as efficient judicial system, does not the sponsor believe that this commission,consistingofchairmanandtwomemberswhowillprobablybehavinganair-conditionedroominMetroManila,willnotbeabletoprevent,muchless,remedyviolationsofhumanrights?

MR. SARMIENTO. But, Madam President, what we have in mind are men who are not confined in air-conditionedrooms.Themenwhowillbeappointedwillhavetogotothefield;theywillhavetoconductfact-findinginvestigations;theywillhavetoworkwiththepeopletofeeltheirsufferingsandpainstounderstand


whathumanrightsviolationsare.So,inthisway,theywillbeeffectivehumanrightsadvocates.

And I believe this cannot be handled efficiently by police forces considering the massiveness of humanrightsviolations.Wewillberenderingthepolicemeninutileorineffectiveiftheywilldevotemuchoftheirtimeinvestigatinghumanrightsabuses.

MR. PADILLA.Underparagraph4,whichsays:“Establishacontinuingprogramofeducationandinformationtopropagatetheprimacyofhumanrights’wouldthisnotbeincludedintheArticleonHumanResourceswhichstresseseducation?

MR. SARMIENTO.There is a resolution approved by that committee stating that the school curriculumincludes giving education to pupils and students about human rights. But I believe that schools shouldworkcloselywiththiscommissionsothatthecontinuingprogramofeducationonhumanrightswillbeeffective.


MR. PADILLA.Itmaybeaduplication.On paragraph 3, it says:‘legal aid services for indigent persons.” I understand there is the Citizen’s LegalAidOffice(CLAO)whichhasanumberofdeputizedlawyers,someofthemassignedtoeachbranchofourcourtsandtheyareevenpaidoutofgovernmentfunds.Willthisintendedcommissionsupplantordeletethisoffice?

MR. SARMIENTO.No,MadamPresident.Asamatteroffact,thecommissioncandeputizethisCLAOtohandlethiskindofcases,buttheassistanceofCLAOwillnotbeenough,andthisissupportedbyourexperienceinthepast.Consideringthenumberofhumanrightsviolations,CLAOdoesnothavethesufficientmanpowerandfacilitiestohandlethiskindofcases.ManyofthevictimsofhumanrightsviolationshavetogotoIBPandasktheassistanceofChiefJusticeConcepcion,theMABINI,theFLAG,thePLLandothercause-orientedgroups.

MR. PADILLA.ThisisthepointbecausemanylawyersoftheCLAOarenothelpingindigentpersons.Manyofthemarepracticinglawandtheysometimescollectfeesinadditiontotheirsalaries,andsometimesitstrangethatthefiscalrepresentstheprosecutionandanothergovernmentofficerepresentsthedefense.Itisnotaveryniceequilibriumofjudicialrepresentation.

AsmentionedbyCommissionerdeCastro,paragraph1says:“investigateallformsofhumanrightsviolations.”ThatseemstobethemainfunctionoftheombudsmanunderSection12,paragraph1:‘toinvestigateonitsownorcomplaintbyanyperson,anyactthatisillegal,unjust,improperorinefficient.AndIsupposetheword“illegal”canalsocovercriminalviolationsofhumanrights.

MR. SARMIENTO. Madam President, in the speech delivered by Commissioner Colayco, he explainedthat the functionof theombudsmanwillbethatofcriticandwatchdogprimarily topreventwasteandmismanagement, graft and corruption in our government bureaucracy. He did not contemplate in hisexplanation all forms of human rights violations like salvaging, disappearances, hamletting, torture, etcetera.


MR. COLAYCO. MadamPresident.

THE PRESIDENT. CommissionerColaycoisrecognized.

MR. COLAYCO. May Igivea short reaction.Theombudsman’s role is merely to help the ordinarycitizenagainsttheinactionoftheadministrativedepartmentofourgovernment,nottotakecareofhumanrightsviolations.Thatis,Ithink,spelledoutveryclearlyinthearticle.

THE PRESIDENT.Thankyou.

MR. PADILLA. Just one or two more questions. Even under the Aquino administration, we witnessedcarnappingsdoneinbroaddaylightinpublicview.

MR. SARMIENTO.Madampresident,theVicePresident’sson,AlexanderPadilla,wasavictimofcarnappingafewdaysago.

MR. PADILLA.Yes,andbeforehim,theMinisterofNationalDefense,JuanPonceEnrile.

DoesthesponsorbelievethatbycreatingthisCommissiononHumanRights,suchdeprivationscommittedwithimpunityagainsttherightofproperty-becausethatisalsoahumanright,Ibelieve-couldbeavoidedorminimized?

MR. SARMIENTO.Ithinkwecanleavetopropergovernmentagenciestheinvestigationofcarnappingcasesandtheprosecutionofcarnappers,otherwisewewillbeexpandingthefunctionsoftheCommissiononHumanRights.Aswesaid,wewillbegivingprimacytoviolationsofcivilandpoliticalrights.Carnappingisproperlycoveredbytherevisedpenalcode.Andso,webelievethatappropriategovernmentagenciescanconducttheinvestigation,likethePC,Metrocomandotherlawenforcementagencies.

MR. PADILLA. Thatismypoint.Ifwestrengthenandimproveourlawenforcementagencies,notonlyinpreventingbutalsoindetectingandapprehending,thenbringingtheculpritstojustice,wewillhaveaneffectiveadministrationof justice.Thiswillbemoreeffective inprotectingandpromotinghumanrightsratherthanthecreationofanothercommissionwhosefunctionsmightduplicateoroverlap.Ihavealwayssaidthatweshouldnotmakeourgovernmentmachinerymorebureaucratic.Weshouldsimplify,and ifpossible,reduceunnecessaryoroverlappingbureausandoffices.

MR. SARMIENTO. Idonotthink itwilloverlapwithotherbureausandoffices.Thiscommissionwillbeaspecializedgovernmententitythatwillhandleallformsofhumanrightsviolations.Asamatteroffact,thePresident,awareofthemagnitudeofhumanrightsviolations,createdaPresidentialCommitteeonhumanRights,specificallyto investigateall formsofhumanrightsviolations.ButasexplainedbyCommissionerGarcia,wewantthatthiscommissionbebeyondfortunes,politics,whimsandcapricesofpoliticianssothatthereistheneedforanindependentCommissiononhumanRights.

MR. PADILLA.Theassumptionisthatthecreationofthiscommissionwillachieveallthosepurposes.

MR. SARMIENTO.Itmaynotachieveallthesepurposes.Atleastitwillminimizealltheseviolations;notonlyminimizealltheseviolations;notonlyminimize,butalsopromoteandprotecthumanrightsbyconductingeducationalcampaigns.



MR. PADILLA.MadamPresident,oneofthesponsor’sanswertomyquestioncontemplatesanationwideagencywithmanydeputizedofficesoremployeesalloverthecountry,notonlythecommissioners.Willthatnotduplicatetheworkofthepolice,theNBIandothergovernmentofficesandthen,ultimately,ajust,speedyandeffectiveadministrationofjusticeunderthejudiciary?

MR. FOZ.Theanswer to thefirstpartof thestatement, thequestionofwhether thecommissionwouldhave,letussay,regionalbranchesoroffices,issomethingthatshouldbetakencareofbyenablinglawsorimplementinglaws,soitistheintentionthatthecommissionshouldbeabletodeputizepublic,aswellasprivate,individualsororganizationstobeabletoreallyeffectivelycarryoutitsfunctions.

THE PRESIDENT.Iamsorrywehavetointerruptthisdiscussion.

MR. PADILLA.Thankyou.

THE PRESIDENT.We will suspend the session for our luncheon break at the South Lounge. During theluncheon,wewillhaveaninformalcaucusamongourselves.

MR. GASCON.MadamPresident.

THE PRESIDENT.CommissionerGasconisrecognized.

MR. GASCON.Wehaveadeadlineoftwelveo’clockfortheproposedamendmentstotheArticleonnationalEconomyandPatrimony.

SUSPENSIONOFSESSION

THE PRESIDENT.Wewilltakeitupduringourcaucus.

Thesessionissuspended.

It was 12:17 p.m.

RESUMPTIONOFSESSION

At 3:21 p.m. the session was resumed.

THE PRESIDENT.Thesessionisresumed.

MR. RAMA. MadamPresident.


MR. RAMA.TherearestillinterpellatorsontheArticleonHumanRights.MayIaskthatthechairmanandthecommitteememberstaketheirseatsinfront.


THE PRESIDENT.CommissionersFoz,Sarmiento,Garcia,MonsodandRigoswillpleasetaketheirseats infront.

MR. RAMA.Thenextregisteredspeaker,Madampresident,isCommissionerBacani,whoisnotyethere.So,inthemeantime,mayIcallonCommissionerRomulotointerpellate.

THE PRESIDENT.CommissionerRomuloisrecognized.

MR. ROMULO.Thankyou,MadamPresident.

Iwouldliketopickuponthecomment,inanswertoCommissionerNolledo,thatthisisaquasi-judicialbody.Ibelievethatthisisnotbecauseitsmainfunctionisinvestigativeandthereisnoadjudicatoryfunction.ItisliketheAgravaCommission.Ithassubpoenapowersbutitsmaindutyistodeterminethefacts.Wouldthecommitteecommentonthat?

MR. SARMIENTO. I thinkwiththatclarification, IwillagreewithCommissionerRomulo,butas Isaidthismorning,ithasmorethanfact-findingpowers.AndifCommissionerRomulowillnote,asidefromconductinginvestigations, it will also provide appropriate legal measures; it will establish a continuing program ofeducationandperformsuchotherfunctionsasmentionedthismorningbyCommissionerNatividad.

MR. ROMULO.Yes,inthatrespect,itisacommissionwithmanyfunctions.

MR.SARMIENTO. Yes.

MR. ROMULO. Just by way of comment, like the others, I am bothered only by the possible multiplicityof overlapping jurisdiction because of the broadness of the term“human rights.” But the others havecommentedonthat,andIhopewecanfindaremedyforit.

MR. SARMIENTO. That is why I think the apprehensions will be eliminated if we state that we will giveprimacytocivilandpoliticalrights,noteconomic,socialandculturalrights.ThatistolimitthefunctionsofthisCommissiononHumanRights.

MR. ROMULO.With regardtoSection3, Iwould just like tocall thesponsor’sattentionto theprovisionintheJudiciaryActwhich, ifhewillrecall,wasCommissionerAzcuna’sproposalforthejudiciary;that is,promulgaterulesconcerningtheprotectionandenforcementofconstitutionalrights.So,again,doesnotthesponsorthinkthatwewillhaveanoverlappingoffunctions?

MR. SARMIENTO.IthinkthatprovisionintheArticleontheJudiciarywillbesupplementarytothefunctionsoftheCommissiononhumanRights.IdonotseeanyoverlappingorconflictbetweenthatarticleandthisarticleontheCommissiononHumanRights.



MR. ROMULO.Idonotrememberthesponsor’sexactreplytocommissionerBengzon,butforclarity,whenwesaylegalmeasures,areweempoweringthecommissiontoissuerules,regulationsorprocedures?

MR. SARMIENTO.Yes,MadamPresident.ItwillberecalledthattheexecutiveordercreatingthePresidentialcommitteeonhumanRightsspecifiedthatfunctionempoweringthecommitteetopromulgaterulesandregulations.Thiscommissionwouldalsohavethatright.Theotherconstitutionalcommissionshavethatpower.SoIdonotseeanyreasonwhyweshoulddeprivethiscommissionwiththatparticularfunctionorpower.

MR. ROMULO.Then,perhaps,weshouldhaveastrongerverbthan“provide.”

MR. SARMIENTO.Wewillwelcometheamendmentatthepropertime.

MR. ROMULO.And,finally,IaskthisbasicquestionwhichIthinkhasalreadybeenasked:assumingthatwehaveaneffectiveTanodbayan,areformedjudiciary,areinvigoratedprosecutorialserviceplusareorientedpresidencyandarmedforces,doesthesponsorthinkwestillneedaCommissiononHumanRights?

MR. SARMIENTO. I thinktheprotectionandpromotionofhumanrightswillbeanongoingconcern.So,evenifwehaveastrengthenedjudiciary,wewillstillneedthisCommissiononHumanRights.Humanrightswillalwaysbewithusaslongasweliveashumanbeings.

MR. ROMULO.Yes,but,presumably,asweimprovethejudicialsystem,becausetheresponsetotheviolationofhumanrightswouldimprove,didthesponsornotconsiderthatperhapsaCommissiononHumanRightsmaybenecessaryforacertainnumberofyearsandthenitcanbephasedoutdependingonhowtheotherjudicialmachineryinourgovernmentisworkingout?

MR. SARMIENTO.Yes, I think IwillagreewiththeGentleman.Wedonotforeclosethepossibilitythatatsomepointintime,thisCommissiononHumanRightswillbephasedout.But,asofnow,wereallyneedthecreationofaCommissiononHumanRights.

MR. GARCIA.CouldIjustaddtothat?Thereisalsoaneedforongoinginformationonhumanrights,bothforthecivilianpopulationandthemilitaryandpoliceforces,forthemtoenforcehumanrightsandtounderstandthestandardsbywhichtheirbehaviorwillbejudged.So, Ibelievethebetter informedthecitizenryandthosewhoareespeciallymandatedtoenforcethelaw,thebetter.IthinkthisisanimportantfunctionofthisHumanRightsCommission;therefore,theneedforthiswillbeapermanentthing.

MR. ROMULO.Whenwespeakofacontinuingprogramofeducationandinformation,doesthecommitteeenvisionthatthecommissionitselfwouldundertakeitorthecommissionwouldrecommendtotheMinistryofEducation,CultureandSportstohavecertaincourses?

MR. SARMIENTO. I think both, Madam President.The commission itself will undertake the educationalcampaignorincoordinationwiththeministriesofthegovernment.


MR. ROMULO.Andasreportedhere,doesthesponsorfeelthatweneedacommissiontoundertakethiswork?

MR. SARMIENTO. Yes,MadamPresident.IconferredwiththehonorableChiefJusticeConcepcionandretiredJusticeJ.B.L.ReyesandtheybelievethatthereshouldbeanindependentCommissiononHumanRightsfreefromexecutiveinfluencebecausemanyoftheirregularitiesonhumanrightsviolationsarecommittedbymembersofthearmedforcesandmembersoftheexecutivebranchofthegovernment.Soastoinsulatethisbodyfrompoliticalinterference,thereisaneedtoconstitutionalizeit.

MR. ROMULO. Thankyou.

MR. RAMA. Iask,MadamPresident,thatCommissionerRegaladoberecognized.

THE PRESIDENT. CommissionerRegaladoisrecognized.

MR. REGALADO. Thankyou,MadamPresident.

MayIjustposeafewminormatterstothecommittee.IdonotknowifwetookthisupthismorningbecauseIhappentobeoutattendingtoourprintingproblemsfortheCommission.

Onpage2,lines5and6,Isupposethecommitteecouldpossiblyconsidermoreofastylethedeletionofthewords“promulgatedbytheSupremeCourt,”becausetheproperterminologyhereis“RULESOFCOURTinthePhilippines.”Thatisalreadyunderstood.

MR. SARMIENTO. IthanktheCommissionerforthatobservation.

MR. REGALADO. Also,lines14and15appeartobesubparagraph5-“performsuchotherdutiesandfunctionsasmaybefixedbylaw.”IntheCommonProvisions,ArticleXII,Section7,thatisrequiredanditisoneofthefunctionsofalltheconstitutionalcommissions.Perhaps,thesponsormayconsiderthedeletionthereofatthepropertime.


MR. SARMIENTO. Thankyouforthatobservation,MadamPresident.

MR. REGALADO.Onemajorconcernofmineisthemeaningofthephrase“humanrights”becausewearegoingtohaveaconstitutionalcommissiononhumanrightsbutalongthesameveinasthosementionedbythosewhospokebeforeme.Wedonotseemtohaveaverydefiniteconceptofwhatishumanrights.

Thebodywill recall thatduringtheproceedingsontheArticleonAccountabilityofPublicOfficers,asafall-backprovisionintheeventthatthisarticleisnotapprovedbythisCommission,IhadproposedthereinanadditiontoSection12,paragraph2,thelastphrasetherewhichsays,“includinganyviolationofcivil,politicalorhumanrights,”whichIhadexplainedbefore.ButitwillalsobenoticedthatIwasquitecarefulindelineatingandspecifying“civil,politicalorhumanrights,”because if it isacivil rightofwhichone isdeprived,theprocedurewouldbe,ofcourse,togothroughacivilcase.Ifitisapoliticalrightthatisviolated,


itcouldeitherbeacivilcaseoracriminalcase,itwillbewithinthejurisdictionoftheregularprosecutoryservices.Ifitisacivilcase,thenitwillbewithintheindividualinitiativeofthepartycomplaining.

Thecommitteementionedthismorningthatinconnectionwiththeterm“humanrights,”theyarereferringonlytothecivilandpoliticalrightsembodiedintheUniversalDeclarationofHumanRightsbutexcludingthesocialandculturalrightsmentionedtherein.

Myproblemwiththisamorphoustermis,forinstance,letmeinviteattentiontothisUniversalDeclarationofHumanRights,particularly,ArticleXVI,paragraph1whichsays:

Menandwomenof fullage,withoutany limitationduetorace,nationalityorreligion,havetherighttomarryandtofounda family.Theyareentitledtoequal rightsastomarriage,duringmarriageandat itsdissolution.

Ifthisrightisviolated,itisactuallyaviolationofacivilrightwhich,however,isnowenshrinedasoneofthehumanrightsundertheUniversalDeclarationofHumanRights.Inotherwords,weactuallyhavehereacivilrightwhichisconsideredundertheprotectionofahumanrightprovisionundertheuniversaldeclaration.So,bringingitdownnowintothisparticulararticle,ifthereshouldbesuchaviolationinthePhilippineswhichonlyiswithrespecttothefreedomtomarry,thefreedomtofoundafamily,sinceitisahumanright,wouldthatfallwithinthejurisdictionoftheproposedCommissiononHumanRights?

MR. SARMIENTO. Madam President, Commissioner Aquino would like to answer the question. She is ahumanrights’advocate.

MS. AQUINO.Idonotclaimanyexpertiseonthesubjectmatter,but,madamPresident,mayIbeallowedtoreply.

THE PRESIDENT.Yes,CommissionerAquino.

MS. AQUINO.IshallattempttoreplytothequeryofCommissionerRegalado.IthinkthequestionisconceptualinthesensethatitisessentiallyofwhatvaluesotherthanthosewehaveconstitutionallyprovidedforintheBillofrights,providethereservoirofsourcesfordecisionalnormsinhumanrightscases.

IntheUnitedStatesthereisadebateaboutinterpretativeandnon-interpretativereviewofhumanrightscases.Andtheconsensuspertainingfor themoment is thatthevaluesthatwouldserveasreservoir fordecisionalnormswouldbetraditionandconsensus.Bytradition,werefertoprincipledtraditionswhichwouldbedeterminateandhelpfulinprojectinghumanrightscases.

In thePhilippines,wespeakof thetraditionofpoliticaloppressionduringtheperiodofmartial law.Wespeakofthetraditionofracialbigotry.Minimally,wecouldspeakofthetraditionofreligiousintoleranceintheSouth,forexample.Andonmattersofconsensus,theconsensusisonthematterofhistory.

ThisiswhereIwouldliketodifferpartlywiththecommitteewhenitseemstofocusonpoliticalcasesonly.Itisaskew;itisabitoffmark.WhenwespeakofcountriesintheThirdWorld,likethePhilippines,wespeakofhumanrightsassomethingthatisbasic,somethingthatpertainstoarighttolife,shelter,food,decenteducationanddecentstandardsofliving.Itisessentiallytheassertionofourclamorfordignitytohumanlife.ItisbornoutofacollectivestruggleoftheFilipinopeopleagainstaneo-colonialhistory.


ComparedtothecountriesoftheFirstWorld,whereincapitalismgivesfullgeartoindividualinitiative,wespeakofhumanrights inthecontextoftheMagnaChartaofRightsastheend in itself- thefreedomtoassemble,speakandpetitionforredressofgrievances.

Itwouldseem,therefore,thatthereisafocusonindividualandcollectiverights.ThereisavitaldifferenceinthecountriesoftheFirstWorldandtheThirdWorldonthismatter.Theemphasis,andrightlyso,inthecountriesoftheFirstWorld, isonindividualrights,theMagnaCharta;whileinthecountriesoftheThirdworld,themeaningfulconceptofhumanrightsisseenincollectivism.Itisacollectiverightofthepeopleagainstinhumanity,oppression,starvationandignorance,suchthatwespeakofhumanrightsnotasendinthemselves,butratherasmeanstoachievegreaterends,

Ithinkthefocusshouldbemorerightlydirectedinthattrend.


MR. REGALADO.MadamPresident.

MR. SARMIENTO.DoesthatanswertheCommissioner’squestion?

MR. REGALADO. Madam President, conceptualization, we admit, is proper and apt with its interstitialdifferences in the quiet pathways of the academe. But I am more concerned with the application ofthis particular article in the roaring boulevards of actual life. And it will not be a question merely ofconceptualization,butofjurisdiction.Wehaveotheragencies:theombudsman,theregularprosecutorialservices,thecourtsofjustice.

Wewouldliketofindoutnowexactlywhatarethoseparticularcasesinvolvinghumanrightswhichwouldfallwithinthejurisdictionofthisparticularconstitutionalcommission.AndIrememberthismorningthatthecommitteementionedthatitwillbeforthecommissiontodeterminewhatarethecasesthatwouldbewithinitsjurisdictionandnotbecompoundinganunduedelegationofpowers.

Ontheotherhand,IseenomentionhereaboutCongressprovidingforsuchcasesasshallfallwithintheexclusivejurisdictionofthisHumanRightsCommission.

Actually,whenwegointotheactualapplicationofthisarticle,divorcedfromitspresentephemeralstatus,wewillhavethatproblem:WhendoweinvokethejurisdictionoftheHumanRightsCommission?Unlessthereisaspecificationastothecasesthatfallwithintheirjurisdictionand,evenifnotexclusion,butatleastsomethingwhichmayeitherbewithintheirprimaryorwheretogo,wouldthecommitteewantittobedefinedandenumeratedordeterminedbythecommissionitselforwoulditgiveCongressachancetosaywhatarethethosecaseswhichshouldfallwithinthejurisdictionoftheHumanRightsCommission?

MR. SARMIENTO.IthinkitwillbefortheenablinglawtodefineexactlywhatarethesespecificoffensesthatwillbecoveredbytheCommissiononHumanRights.

MR. REGALADO. BecauseIrecallthatintheoriginalresolutionthatwasfiledinthecommitteeofwhichIamalsoamember,itwasmorespecific.Ithinkitwastheexperienceduringthepastregimethattherewereviolationsofhumanrightsonanationwidescaleandgenerallycommitted.Ithinkthatisthethrustofthis


article. It isgenerallydirectedagainstthemilitaryforcesaswellasthepoliceandtheparamilitaryforceswhichwereresponsibleforallthosethings.AndIthinkthatwastheprogenitorwhichspawnedtheideaofaconstitutionalcommission.

MR. SARMIENTO.Amongotherthings,MadamPresident.

MR. REGALADO.Irememberthattherewerethingsaboutsalvaging,hamletting.Doesthecommitteethinkthatattheproperstage,itcouldformulateamorespecificareaorparametersofthejurisdictionofthisHumanRightsCommission,sowewouldknowwhethertherewouldbeanecessityreallyforaconstitutionalizingthesame?

Ialsovoicetheconcernofsomeof theotherCommissioners,whomIhadtheopportunity toexchangeviews with, that they feel that if we constitutionalize this commission, it is, in effect, an assumption onourpartthatthesamesituationthatgaverisetothe ideaofhavingsuchacommission,thenationwideperiodicity occurrence of human rights violations, will continue, so that we will have a constitutionalHuman Rights Commission indefinitely and, of course, coequally, there must also be the correspondingwidespreadviolationsofhumanrights.Andsomeofthemhadmentionedtomethatsupposeafteraboutafewyears,withtheproperenforcementofthelaws,withtheproperenforcementofthelaws,withtheproperimplementationandtheprotectiongrantedtothecitizens,therewillonlybeveryisolatedviolationsofhumanrights,whichcouldverywellbehandledbytheordinaryagenciesofthegovernment,andyetwehavehereaconstitutionalcommissionwhichmayturnouttobenolongernecessaryor,ifnecessaryatall,nottothatextent.WecannotchangeitorwecannotremoveitunlessweamendtheConstitution.Andtherewereviewsexpressedbysome:whynotjustaconstitutionallymandatedcommission?

So,IamgivingthatasafeedbackfromsomeCommissionerssothatthecommitteemaythinkofthepossibleadvancedefensesshouldtherebeonslaughts,asCommissionerMaambonghadalreadymentioned,whichcouldbeintheformofprejudicialquestion.

MR. SARMIENTO.Madampresident,letusgobyparts.First,Iwouldliketoaddressmyreplytothecommentor inquiry as to whether or not these violations are continuing. My answer to that is yes. Until now, wehavereportsofhumanrightsviolationsbeingcommittedinalmosteverypartofthecountry.Fact-findingmissionsarebeingconductedandtheyreportedthattherearemassivehumanrightsviolations.

For instance, in theVeritas issue of August 14 to 20, 1986, the caption was“Violations Go On,” and theyenumeratedmanyhumanrightsviolationscommittedintheprovinces.

Then,intheIssueoftheDailyInquirerofAugust14,1986,thecaptionwas:“Farmer’sChildsRightsAbused.”Andinthismorning’sMalaya,wehavereportsofhumanrightsviolationsbeingcommittedintheprovincesbygovernmentforces.

So,IbelievethatthereisstillaneedforthisHumanRightsCommission.

Ontheinquiryonwhetherthereisaneedforthistobeconstitutionalized,Iwouldrefertoapreviousinquirythatthereisstillaneedformakingthisaconstitutionalbodyfreeorinsulatedfrominterference.IconferredwithformerChiefJusticeConcepcionandtheactingchairmanofthePresidentialCommitteeonHumanRights,retiredJ.B.L.Reyes,andtheyareoneinsayingthatthisbodyshouldbeconstitutionalizedsothatitwillbefreefromexecutivecontrolorinterferences,sincemanyoftheabusesarecommittedbythebythemembersofthemilitaryorthearmedforces.



MR. REGALADO.Will the sponsor admit that this commission and the thrust of its work is really mainlydirectedagainsthumanrightsviolationsbypublicofficersormilitarypersonnelormilitaryauthorities?

MR. SARMIENTO.Bythenatureofthehumanrightsviolations,yes,MadamPresident.

MR. REGALADO. Mentioned here in Section 2, paragraph 1 is the matter of violations of human rightsby private parties. Does not the sponsor think that if human rights violations are committed by privateparties,theregularprosecutorialservicesofthegovernmentcouldproperlytakecareofthem?SothatinthedefinitionofthejurisdictionoftheCommissiononhumanRights,wezeroedinontheactscommittedbythesepublicofficers,themilitaryofficersandparamilitaryunits.

MR. SARMIENTO. Actually, that was the original recommendation of the proponents of the resolution-thatwelimitittooffensescommittedbypublicofficers.Butthecommitteerecommendedthatweincludeprivateparties.

MR. REGALADO.Inthesamemanner,likeinthecaseoftheombudsman,itwillbenoticedthatthethrustiswithrespecttoofficialmalfeasance,misfeasanceornonfeasance.So,atleast,thereisthatdelineatingareaastotheirjurisdiction.

MR. SARMIENTO. Atthepropertime,theGentlemanmayrecommendhisamendmentjusttoclarify.

MR. REGALADO.Ithinkwecanalsoincludeprivatepartiesorcivilians,iftheyactinconspiracywiththesepublicofficers.Sothat,at least,wewillknowjustexactlywhat istheareawithinwhichthiscommissionshouldoperateasidefromtheotheragencieschargedwiththeprotectionofhumanrights.

MR. SARMIENTO.WewillappreciatetheCommissioner’srecommendationinthispoint.

MR. REGALADO.Thankyou.

MR. RAMA. Inconnectionwiththediscussiononthescopeofhumanrights, Iwouldliketostatethatinthepast regime,every timewe invoke theviolationofhumanrights, theMarcos regimecameoutwiththedefensethat,asamatteroffact,theyhaddefendedtherightsofpeopletodecentliving,food,decenthousingandalifeconsistentwithhumandignity.

So,Ithinkweshouldreallylimitthedefinitionofhumanrightstopoliticalrights.Isthatthesenseofthecommittee,soasnottoconfusetheissue?


MR. GARCIA.Iwouldliketocontinueandrespondalsotorepeatedpointsraisedbythepreviousspeaker.ThereareactuallysixareaswherethisCommissiononHumanRightscouldacteffectively:1)protectionofrightsofpoliticaldetainees;2)treatmentofprisonersandthepreventionoftortures;3)fairandpublictrials;4)casesofdisappearances;5)salvagingsandhamletting;and6)othercrimescommittedagainstthereligious.


Regarding the other point on the necessity of a permanent commission, the experience of AmnestyInternationalsuggeststhatevencountriesinEuropeortheUnitedStatesofAmericaneedorganizationsonhumanrightsliketheAmnestyInternationalwherehumanrightseducationiscriticaltomakepeopleaware of their rights.This is because the rights are normally protected and defended when the citizensarethemselvesconscioustheserightsaretheirsandtheyexist.And,lastly,forthosewhoaresupposedtoupholdthelaw,whichImentionedearlier,likethesoldiersandpolicemenwhoarein-chargeofjails,theyshouldalsobemadeconsciousthattherearerulesthatdeterminetheirbehaviortowardsprisonerswhomtheyaresupposedtotreatanddealwith.

MR. RAMA.IsitalsothesenseofthecommitteethathigherlevelsofhumanrightsaretakencareofbytheArticleonSocialJustice?

MR. GARCIA.Exactly,thereareotherforawheretheseconcernswillbedealtwith.Forexample,onlandreform,therewillbetheMinistryofAgrarianReform;onlabor,therewillbetheMinistryofLabor,andsoon.Thereareotherareasbutwe felt it is important toelevate thisentireconcern forhumanrights toaconstitutionalcommissiontomakethisapermanentandlastingconcernthatwouldbebeyondthereachofpoliticalchangesingovernment.

MR. RAMA.MadamPresident,mayIaskthatCommissionerAquinoberecognized.

THE PRESIDENT.CommissionerAquinoisrecognized.

MS. AQUINO. MadamPresident, IwillhavetotakeexceptiontothepositionofCommissionerGarciaonthispointbecausetolimittheconceptofhumanrightstopoliticalrightsinmattersofpoliticaloppressionis very intellectuallydishonest. Inmy previousdiscussion, the point that I was discussing is that humanrightslieattherootsofsocialdisequilibrium.Forsolongasthereisstructuralimbalance,wewouldhavecasesofhumanrights.Infact,earlierwhenIsaidinitiallythatwhenwespeakofhumanrightsinThirdWorldcountries,theyaremeansnotjusttheendinthemselves,toattaindignitytohumanlife.Tothisextent,IbelieveandIaminfullagreementwiththecommitteethattheworkofhumanrightsisverynoble.Infact,Ithinkitismissionary,withoutsoundingverypatronizingaboutit.Wheneverthereiseveryopportunity,weshouldproselytizeforhumanrights.Butthen,ifthecommitteewillagreewithme,andthisismydilemma,human rights are basic and fundamental to the roots of social disequilibrium; it would, in effect, statelikewisethatwhenwecreateaconstitutionalcommission,itisasiftheobjectiveattainstothelevelofaconstitutionalmessiahthataddressesstructuralproblemsofdisequilibrium.WEshouldresistthatdrift. IwouldliketodisabusethemindofCommissionerRamaaboutit.Butforpurposesofconceptualclarity,letusnotjustaddressthesymptomsoftheviolationsofhumanrights.Deeplyimbeddedarethequestionsofsocialjustice,economicjustice,structuraloppressionandsocialdisequilibrium.


MR. GARCIA. The entire scope of human rights precisely is more on the political, civil, economic andsocial rights. IagreewithCommissionerAquinothat thesourcesofmanyof theseviolationsofpoliticalrightsareinthemselvessocialandeconomicinnature-poverty,hunger,lackofemployment,lackofland,powerlessness,lackofparticipationinpoliticalpower.Weallrealizetheseinourexperiencewiththepeople.Thesearethebasicandrootcausesofmanyoftheirmalaise.Wearenotatallsafeinadvocatingahuman


rightscommission if thesearenot the root causes. In fact, the Article onSocial Justice precisely tries toaddressthestructural,social,historicalandpoliticalimbalancesinoursociety.ButwhatwearetryingtosayinthisproposedarticleontheCommissiononHumanRightsisthatthereisalsoacertainsetofproblemsregarding political detention, arrests, torture, disappearances, salvagings which we have experienced inthepastandwhichweneverwanttoberepeated.Theseareacertainsetofrightswhichareverylimited,Iagree.Theydonoteventouch,asIunderstand,ontherootcausesoftheproblem.But,nevertheless,theyareaproblemthatwillremainwithusandwithmanyThirdWorldcountries.Andoneofthemajorreasonswhytheyareoftennotdefendedisthatpeoplearenotawareoftheextentandnatureoftheirrights.And,therefore,oneofthemajoradvancesthatwecanhaveinthiscountryistohaveacommissionwhichwillnotonlytrytocuretheeffectslateron,butalsotopreventthesebycreatingorformingconscienceswithahumanrightsdimensionwhichisspecificandlimitedinordertomakeiteffective.

TaketheexampleofAmnestyInternational.Itiseffectivebecauseitlimitsitselftotheconcernsofpoliticalimprisonmentandtorture.Ifitconcernsitselfwiththewholegamutofhumanproblems-economic,injustice,socialinjusticeandothers-itcouldneverbethateffective.Therefore,wearefarmoremodestinoureffortsinthisarticlewhichtriestoremedyonlyonearea,althoughthereareotherarticles,othereffortsandothervehiclesandmediawheretheotherbasicproblemsofsocietywillhavetobeaddressed.

MS. AQUINO. IhopeCommissionerGarciaappreciatesmyposition. It isnot justanabstractdiversion. Itcreates actual pragmatic problems. For example, on matters of jurisdiction, as a human rights lawyer, Ihandlecasesofsquatterswhoareforciblyevicted.Squattingisahumanrightsproblem;theoppressionworkersisahumanrightsproblems;sexualdiscriminationisahumanrightsproblem.WouldtheseareasproperlypertaintothejurisdictionoftheHumanRightsCommission?

MR. GARCIA.Althoughtheyarepartofthehumanrightsproblem,wearesayingthatthiscommitteeshouldhavefarmoremodestobjectives.Iftheywanttotrytoremedyonlyonearea,thatisallright;itisaclearerconsciousnessofwhatbasiccivilandpoliticalrightsare.Thenthisoneareathatthecommitteeshouldtrytodefendandsafeguard.Whatdoesonedowhenheisarrested?Whatdoesonedoifthereispressuretomakehimsignaconfessionwithoutcounsel,withoutalawyer?ThesearecertainrightsofindividualsthatmakeonefarstrongerwhenheconfrontsthepolicepoweroftheState.

Inotherwords,Irealizewearenotsolvingtheultimateproblemoflandofthesquatterhere,oflandofthefarmer who is being evicted, but, nevertheless, we are equipping him with political tools with which toconfrontforcesthatarerangedagainsthim.ButIamsayingthatthereareotheravenuesandotherareaswhichcanmeetthemoremajorandmorecriticalproblemsofsocialjusticeandeconomicimbalance.

MS. AQUINO.IwasaskingforthisclarificationbecauseIwantedustoridourselves,andIampartofit,oftheodiumofthismessianicsyndrome,andneitherdoIwanttoraisefalsehopesaboutproblemswhicharebasic,societalandstructural.Thatwasonlymyconcern.

MR. GARCIA.Thankyouverymuch.

MR. RAMA.MadamPresident,IaskthatCommissionerMaambongberecognized.

MR. MAAMBONG. Thankyou,MadamPresident.Iamhappytonotethatmostofmyquestionshavealreadybeenanswered,but therearestillconcernswhichIwouldliketoindicateforthecommittee.TherearethreepointsonwhichIwouldliketogoback


to the problems indicated by Commissioners Regalado,Tingson and the rest, regarding the parametersofpowerand functionsofhumanrights. IwasverymuchconcernedearlierwhenCommissionerGarciareferredtotheUniversalDeclarationofHumanRights.AsIunderstoodhimearlier,thisissupposedtobethecoverageofthejurisdictionoftheCommissiononHumanRights,butlaterhesaidthatitactuallycoversonlypoliticalandcivilrights.AndthenherecomesCommissionerAquinotalkingaboutthecollectiverightsofthepeopletodecencyoflivelihood,andsoon.

So,itappearstomenowthatfromtheverystartwehavealreadybeeninaconfusedstateastowhatreallyisthecoverageofthisterm“humanrights”.Couldthecommitteeperhapsgiveusadefinitivestatementonwhatisreallythecoverage?

Beforethat,IwouldliketoemphasizethatduringthediscussionontheBillofRights,IwasveryspecificinaskingCommissionerBernasabouttheclassificationofrights,andweseemtohavereachedapointwherewesaidthatalltheserightscouldbeclassifiedintoindividualrights,politicalrights,civilrights,economic,social and cultural. What is the coverage of these human rights we are talking about in this proposedarticle?


MR. SARMIENTO. The Gentleman just said that we are in a confused state; I humbly disagree, madamPresident,becausewemadeitclearthatthecoverageoftheCommissiononHumanRightsshouldbepurelyofcivilandpolitical rights.TheUniversalDeclarationofHumanRightscoverssomanyrights-economic,social,cultural,civil,political-butasIsaid,wewilllimitourselvestocivilandpoliticalrightsandtoourBillofRights.

MR. MAAMBONG.MadamPresident,isthatanindicationthatlateronthecommitteewillclarifytheseinanyoftheprovisionsorwillthecommitteeawaitamendmentsfromtheflooronthosepoints?

MR. SARMIENTO.Wewillgladlyaccommodateamendments,MadamPresident.

MR. MAAMBONG.Thankyou.

ButIhavetodisagreewithCommissionerSarmientowhenhesaidthatthecoverageofhumanrightswouldonlybepoliticalandcivil;Ithinkthatistoolimiting.IhavebeenreadingsomearticlesandsomereportsAmnestyInternationaladvertedtobyCommissionerGarcia,andInoticedthattheviolationsinvestigatedbyAmnestyInternational-theycametothePhilippinesandIsawtheirreport-seemtoindicatethattheywerenotonlyinvestigatingviolationsofpoliticalrightsbutindividualrights.Whenwetalkoftorture,wearenottalkingofviolationsofpoliticalrights,wearetalkingofindividualrights,andthedeprivationoflibertyorlife.As a matter of fact, I recall that because of our interest in this matter, we have caused it to be insertedinSection19oftheBillofRights. Ihavebeentryingtoinsertthisand,finally,thebodyapprovedit.Thisreferstoemploymentofphysical,psychologicalordegradingpunishmentagainstprisonersordetainees.So,wouldtheCommissionerreconsiderhisstatementthatthecoverageofthisHumanRightsCommissionwouldonlybepoliticalandcivilsaythatthecoverageshouldbemoreonindividualrightsviolation?


MR. GARCIA.Butthepersonswhoenjoycivilandpoliticalrightsaretheindividuals.Forexample,Article5oftheUniversaldeclarationofHumanRights,whichprohibitstortureorcruelorinhumanordegradingformsoftreatment,isdirectedtoprotecttherightsofindividualsagainsttorture.So,Idonotseeanycontradictioninsayingthatcivilandpoliticalrightsareindividualrights.

MR. MAAMBONG. Isthecommitteesayingthatwhenwesayviolationofpoliticalrights,weareactuallycoveringindividualrightsviolations?

MR. GARCIA. Definitely.

MR. MAAMBONG. ThenIcangetalongwiththat.

MR. SARMIENTO. As Commissioner Maambong said, the power or the coverage of the Commission onHumanRightsisverylimiting.Itis,MadamPresident.AsmentionedbyCommissionerGarcia,itisamodestattempttosolvethehumanrightsproblemsinourcountry.Itisnotanattempttocoverallformsofhumanrightsviolations.

MR. MAAMBONG. Madam President, I think we are going to have a difficulty again, as adverted to byCommissionerBernas,whenwegointoclassifications.Asfarasmyclassificationisconcerned,individualrightsarenotcoveredbypoliticalrights.Asamatteroffact,Article21oftheUniversalDeclarationofHumanRightsenumeratespoliticalrights;forexample,thateveryonehastherighttotakepartinthegovernment.Ithinkthatisclearlyapoliticalright.Anotheristhateveryonehastherighttoequalaccesstopublicserviceinhiscountry;theUniversalDeclarationofHumanRightswentonfurtherbysayingthatthewillofthepeopleshallbethebasisoftheauthorityofgovernment.However,Itakethewordofthecommitteethatwhenwesayviolationofindividualrights,thisisincludedintheterm“politicalrights.”Thisway,wewillnotbeboggeddowninourownmethodofclassification.

ThenextpointtoconsideristhecreationoftheCommissiononHumanRights.Ithinkthecommitteewillagreethatthiscommissioncanbecreatedinthreeways: itcanbecreatedasaconstitutionalbody, justliketheotherconstitutionalcommissions;wecanhaveitmandatedbytheConstitution,theCongresscancreatethisbody.WouldCommissionerSarmientoagreewithmeonthat?


MR. SARMIENTO. Yes, Congress can create this body, but as I have said, if we leave it to Congress, thiscommission will be within the reach of politicians and of public officers and that to me is dangerous.Weshouldinsulatethisbodyfrompoliticalcontrolandpoliticalinterferencebecauseofthenatureofitsfunctions-toinvestigateallformsofhumanrightsviolationswhichareprincipallycommittedbymembersofthemilitary,bytheArmedForcesofthePhilippines.

MR. MAAMBONG. Yes. As a matter of fact, even without the Constitution, even without the law, thisCommission on Human Rights can still be created by executive fiat, whether we are in a revolutionarygovernmentoraconstitutionalgovernment.

MR. SARMIENTO. As a matter of fact, President Aquino created the Presidential Committee on HumanRights.


MR. MAAMBONG.Yes,butweareinarevolutionarygovernment,theOfficeofthePresidentcanstillcreatethiskindofcommission.TheGentlemanwillagreewithmeonthat?

MR. SARMIENTO.Yes.

MR. MAAMBONG.MadamPresident,ImentionedasimilarCommissiononHumanRightsinNewZealand.ThisispartoftheirConstitution.Theycall itHumanRightsCommission,andthisispartoftheunwrittenConstitutionoftheunwrittenConstitutionofNewZealand.Buttheprincipalfunctionofthiscommissioniseducationalinnature.Inourcase,weareexpandingthefunctionsoftheHumanRightsCommission.

MR. MAAMBONG.InNewZealand,thecommissioniscreateddirectlybytheConstitution.Isthatright?

MR. SARMIENTO.Yes.


TheHumanRightsCommissionissupposedtobeanindependentbody.Iwouldnotpressananswertothis,buthowmuchwouldthebudgetbe,asfarasthisisconcerned?

MR. SARMIENTO.Sufficientenoughtomakeindependent,Ithink.

MR. MAAMBONG.WouldtheCommissioneragreewithmethatthisCommissiononHumanRightsissomesortofanoversightcommissionjustliketheombudsmaninrelationtoTanodbayan?Intheombudsmanconcept,asexplainedbyCommissionerColayco,theOmbudsmanreceivescomplaintsfrompeoplebecauseofmalfeasance,misfeasanceornonfeasanceingovernmentfunctionsandthenitpassesthemontotheTanodbayan. In this case, just like the Ombudsman, the Commission on Human Rights will also receivecomplaints,dosomeinvestigationbutactuallyintheimplementationitself,itwillhavetopassthemontotheregularinvestigativebodiesofthisgovernment.

MR. SARMIENTO.Nottotheinvestigativebodiesbuttotheprosecutorybodiesofthegovernment,becausethecommissionwilldotheinvestigation.

MR. MAAMBONG. In other words, if the Commissioner will investigate, does it have to have a corps ofinvestigators?

MR. SARMIENTO.Yes.

MR. MAAMBONG.Andinotherwords,itwillrelyontheinvestigativefacilitiesofthePhilippineConstabularyat the present setting or the NBI or any other investigative arm. It will have to have its own corps ofinvestigators.

MR. SARMIENTO.MadamPresident, itwillhaveitsowncorpsof investigatorsandthebodycandependupontheexistingagenciesofthegovernmenttoassistitinitsinvestigativework.

MR. MAAMBONG.IamalittlebitworriedaboutSection2(1)whichsays:“Investigateallformsofhumanrightsviolationscommittedbypublicofficers…”andthisincludescivilianandmilitaryauthorities.CouldtheGentlemanexplainwhathemeansby“civilianandmilitaryauthorities”?


MR. SARMIENTO.MadamPresident,“civilianandmilitaryauthorities”refertoparamilitaryforces.TheycouldalsorefertomembersofthePC-INP,membersofthearmy,marineandnavy.

MR. MAAMBONG. Justtoclarifythepointstakenupearlier,CommissionerGarciasaidthatthisisactuallynotonlyaninvestigativeagency,butarecommendatoryagency;itisalsoapreventiveagency.Isthatright,CommissionerGarcia?

MR. GARCIA.Yes.


MR. MAAMBONG.AnditcanconductaninformationcampaignandaccordingtoCommissionerSarmiento,itmayassistintheactualprosecutionofoffensesandwill,infact,coverdifferentislandsofthecountry,ifthatisatallpossible.Finally,isitnotafactthatwhenwetalkoftheCommissiononHumanRights,wearemoreorlessinterestedinthewholesaleviolationofrights,likeatrocities,politicalpersecutions?Wedonotreallyconcernourselveswiththeday-to-daycrimethatiscommittedinthiscountry.Otherwise,thewholecommissionwillbeboggeddown.

MR. SARMIENTO.Yes,MadamPresident.Weleaveittotheproperlaw-enforcementagenciestotakecareoftheday-to-daycrimesbeingcommittedinourcountry.

MR. MAAMBONG. So,wearemoreorlessconcernedwiththeseviolationswhichaffect,probablytocointheword,humanityitselfandinvolvesomanypeople,liketheEscalantemassacreandallthese.

MR. GARCIA.No,MadamPresident.Itcanalsorefertooneindividualwhoisimprisoned.Theviolationoftherightsofanyonesinglepersonisaviolationofhumanrights.Whenamanisnotgivenfairtrialoristortured,thiscommitteeorthiscommissionmustinvestigatetheviolationandtrytoprosecutewiththehelpofotheragencies.

MR. MAAMBONG.ThatisreallywhatIamworriedabout,madampresident.Apersonmightperceivethathishumanrightisviolated,andhumanrightisaverybroadterm.Andthen,henotonlygoestotheregularinvestigativeauthorities;healsogoestoHumanRightsCommission.Wenowhavetwoagenciesworkingalongthesameline.Howdoweintendtosolvethis,MadamPresident?

MR. SARMIENTO. Commissioner Maambong mentioned day-to-day crimes. What I have in mind whenIansweredhiquestionwereordinarycrimes,suchas robbery,homicide,murder.Butwhenwespeakofviolations against the right or the freedom against torture, against cruel and inhuman or degradingtreatmentorpunishmentorviolationoftherighttodueprocessoflaw,freedomfromarbitrarysearchandseizure,theseareviolationsthatcanwellbecoveredbytheCommissiononHumanRights.

MR. MAAMBONG.That,moreorless,clarifiesmyquestion.IwilljustpointoutonethingthatishappeningnowintheProvinceofCebu,butthisisnottoscaretheCommissioners.

IfwewillgooverournewspapersinCebu,therateofkillingofpoliceofficersandmilitaryofficersisalmostonceeverytwodays.LastSunday,Iattendedtheburialofoneofourpolicepatrolmen,Pat.RolandoRuiz,agoodfriendofmine.Anotherstudentofmien,PCMajorPedyNovalwasshotinthehead.Thishasbeen


goingonsinceNovember1984uptopresent;andthebodycounthasbeengoingoneveryday.CardinalVidalhasexpressedhisconcern.Afewdaysago, inthetownofTuburan,whichisadjoiningmytownofAsturias,thewholestationcommandwasoverrun,andthreepolicemenwereexecutedbyagroupof50menwearingmilitaryuniforms.

Thismaynotbetruethroughoutthecountry,butIamverymuchdistressedbecausethishasnothappenedbefore in Cebu. Will this be considered part of the job of the commission, for example, to investigatethiswholesalekillingofpoliceofficersandmilitarypersonnelgoingonnotonlyinCebubutalloverthecountry?

MR. SARMIENTO.Committedbywhom?Dowehavesuspects?

MR. MAAMBONG.Thatisthequeerthingaboutit.Ilookedoverthestatisticsandfoundoutthatsince1984,thosekilled,whetherpoliceofficers,militaryofficers,columnistsornewspapermen,wereshotinthehead.Nobodyhasbeenarrestedorchargedincourt;nobodyhaseverbeenconvictedbecausethesearecrimeswhicharesupposedtobecommittedbypeoplewhomwedonotknowanythingabout.TheyattributethistothesparrowunitoftheNewPeople’sArmybuteventhisisnotclear.ThisishappeningnotonlyintheProvinceofCebubutinotherprovinces.ThisiswhatImeanbywholesalekillingofmilitarypersonnelandpoliceofficers.Andso,IaskoftheseshouldbeinvestigatedbytheCommissiononHumanRights.

MR. SARMIENTO.IagreewithCommissionerMaambong.


MR. RAMA.MadamPresident,IaskthatCommissionerRosarioBraidberecognized.

THE PRESIDENT.CommissionerRosarioBraidisrecognized.

MS. ROSARIO BRAID.MadamPresident,mycolleagues:IaminclinedtoagreewithCommissionerAquino.AlthoughIfeelthatthelegalandpoliticalaspectsareimportant,Iwouldliketoseehumanrightsinabroadercontext.Ifeelthattheapproachhereis,tousetheanalogyinmedicine,morecurativethanpreventive.Perhapssuchacommission,ifitwereelevatedtoaconstitutionalcommission,shouldconcernitselfmorewiththeenvironment,thehistorical,cultural,socio-economicconditionsthathavefomentedthisstateofattitudinalandvalueorientationtowardsviolence.Ifeelthatifsuchisestablished,itshouldfollowtheformthattheNewZealandHumanRightsCommissionhadtaken-thatitshouldbemoreofaneducationalcommission.Iwouldsubmitthatmanyhumanrightsviolationsare,asaptlydescribed,symptomsofthemaladythatisseenintermsoftheinequitiesinoursocioeconomiclife,andthecontinuingbarrageofmessagesfromourmediaandother informationchannelsaswellas theeducationalsystem,whichcontinually feeluswithviolenceandwhichportraydeviantbehaviorasthenorm.

Therefore, ifsuch isestablished, Ihope itconcentratesmoreonpolicyresearchandactionprogramsonareassuchasnonviolenceandpeacestrategies.ItwouldemphasizeuniqueFilipinovaluesandnonviolentstrategiesonsocialchange.Wewill,therefore,beworkingonchangingtheenvironmentratherthanmerelyconcentratingonalimitedarea.Ifsuchisestablished,wecouldworkmoretowardstherestructuringofthemasscommunicationsystemandtheeducationalsystem.Itwouldemphasizethevaluesinfamilylifeandwillworktowardsamorecomprehensivecoordinationofallformalandnon-formaleducationasthesearetheveryinstitutionsthathavecontributedtothepresenthumanrightsviolations.


IalsohopethatwecouldincludeintheHumanRightsCommissionmembersnotonlyfromthelegalfieldbutalsoeducators.Ifweacceptthathumanrightspromotionisaproblemofeducation,whyshouldwelimit it only to attending to the symptoms of the problem? I hope that a more in-depth analysis of thefunctionsofthiscommissionismadeandthatwerefocusittoestablishingaresearchinstitutionthatwouldbedevotedtopeaceresearch,tonon-violentstrategies.


MR. GARCIA.RegardingthefirstpointoftheCommissioner,thedifferentarticlesintheConstitutiontrytoaddressthemyriadproblemsthatwefaceinthiscountry.IagreewithCommissionerRosarioBraidthattherearenumerousstructuralproblemsthatarefarmoredeep-seatedandimportantincharacter.Iunderstandthatinthedifferentarticlesoftheconstitution,wetrytoaddressthesediverseproblemsthatwefaceinoursociety,includingwhattheCommissioneralreadymentioned.TheCommitteeonHumanResourceswillbediscussingthesepointsoneducation,science,artsandculture.So,asIalreadymentioned,wearesimplytryingwithverymodesteffortstodefendandsafeguardthecivilandpoliticalrightsofcitizens,especiallywhenitconcernspolitically-relatedoffensesorrights.

With regard to the second suggestion on incorporating into this commission men of other professions,wewillbeopentothatsuggestioniftheCommissionercanformulatethatamendmentduringthepropertime.

MS. ROSARIO BRAID.Yes,mayIaddthatitisnotjustpropagatingtheprimacyofhumanrightsbutfocusingonhowwecanreorientsectorsorindividualswhoareconstantviolatorsofhumanrights-providingthemcontinuing educational programs. Some of them are now in prison; some are in the military; and somearedrugaddicts.Reorientationprogramstailoredviolentstrategieswouldhelpthemrealizethattherearealternativewaysofsolvingproblems,ratherthanbyviolentmeans.

Inothercountries,theyhavetriedtoaddresstheproblemsofhumanrightsbyestablishingpeaceinstitutes.Iknowofseveralcountries likeFinlandandotherdevelopingcountries,wherealthoughtheir long-termgoalsaredirectedtothepreventionofhumanrightsviolation,theirprograms,however, focusonpolicyresearchandactionprograms.

MR. SARMIENTO. MadamPresident,thesuggestionoftheCommissioneriscoveredbyoneofthefunctionsoftheHumanRightsCommission,andthatistoestablishacontinuingprogramofeducationandinformation.Thisprogramofeducationcouldcoverthenon-violentstrategieswhichshementionedandpossiblythecreationofpeaceinstitutes.

MS. ROSARIO BRAID.Butcouldwebemorespecific?Thewayitreadsnow,itwouldappearthatitisenoughtopackageaninformaleducationprogramthatwouldteachchildrenandadultstheimportanceofhumanrights.Butweknowthatwemustcreatetheappropriateinstitutionsthatwouldexaminethecausesandconsequences of human rights violations and that subsequent information and educational programsshouldbebasedonpolicyresearch.

MR. SARMIENTO. Madam President, we are formulating a fundamental law, a constitution, and I thinkweneednotspecifythesevariouseducationalapproaches.Mysubmissionisthatthesearecoveredbyacontinuingprogramofeducation.


MS. ROSARIO BRAID.Yes.

MR. SARMIENTO.Butfortherecord,theCommissionercanmentionthosethingsaspartofthecontinuingprogramofeducation.

MS. ROSARIO BRAID.ButIwouldliketohopethatthecommitteeshallacceptanamendmentthatfocuseson peace research and applied programs for nonviolent strategies of social change, something to thateffect.

MR. SARMIENTO.Yes.

MS. ROSARIO BRAID.Thankyouverymuch.

MR. RAMA.MadamPresident,IaskthatCommissionerBacaniberecognized.

THE PRESIDENT.CommissionerBacaniisrecognized.

BISHOP BACANI.MadamPresident,IwillasktwoquestionswhichIconsiderveryimportantandtheyneedonlyverydirectanswers.Doesthecommitteeconsidersuchacommissionnecessary?


MR. GARCIA.Yes,otherwisewewouldnotproposeit.

BISHOP BACANI. Does the committee consider it necessary that the body should be a constitutionalcommission?

MR. GARCIA. Yes. In his sponsorship speech, Commissioner Sarmiento explained why he considers itimportant.Forme,themostimportantreasonisthis:Wearedealingherewithpolitically-relatedviolations;therefore, it is importantthatthebodyisbeyondthereachofpoliticalchangesingovernment;thatthemembersbenotsimplypresidentialappointeesbutthattheyarebeyondthat;thatthebodyisindependentand,therefore,canevencheckthoseforces,likethemilitary,thepolicewhoaresupposedtoimplementorenforce,butsometimesrepresstherightsofcitizens.

BISHOP BACANI.WhileIaminfullsympathywiththeideathatthereshouldbesuchcommission,Iamnotconvincedbythereasoningtoopt foraconstitutionalcommission.Letus takethecaseofourproblemregardingdeforestationwhichhasrootsandramificationsthatgointotheexecutiveandlegislativebranchesofthegovernment,andyetwedonotask,despitetheseriousnessoftheneedforreforestationandtheneedtoarrestdeforestation,foraconstitutionalcommissiononforestconservation.Letusalsotaketheexampleofthesituationonpollution-again,thecausesgointotheexecutiveandlegislativebranchesofgovernment,andyetpeopledonotpetitionforaconstitutionalcommissiononpollutioncontroldespitethe urgency of the problem and the fact that it is so widespread and that it has roots and branches allover,andneedsindependentmen.Yetwhenitcomestohumanrightsviolations,wesay:“Well,becauseweneedpeoplewhoareindependentbecausetheproblemissowidespread,weshouldhaveaconstitutionalcommission.”

MR. GARCIA.Thecriticalfactorhereispoliticalcontrol,andnormally,whenabodyisappointedbyPresidentswhomaychange,thecommissionmustremainabovethesechangesinpoliticalcontrol.Secondly,theother


importantfactortoconsiderarethearmedforces,thepoliceforceswhichhavetremendouspowerattheircommandand,therefore,wewouldneedacommissioncomposedofmenwhoalsoarebeyondthereachoftheseforcesandthechangesinpoliticaladministration.

BISHOP BACANI. But that is also very true regarding deforestation. The same elements- military, meninpolitics,peopleappointedbythePresident-arealso involvedandyetwedonot reallyask forsuchaconstitutionalcommissioneventhoughwearetoldbytheMinistryofNaturalresources,forexample,thatifourpresentrateofdeforestationcontinues,bytheyear200weshallirreversiblyenterintoaprocessof“desertification”whichmayhaveenteredalready,theysay.ButasIsaid,nobodyhasproposedtocreatesuchacommissionforforestconservation.

MR. SARMIENTO. With respect to the creation of such a commission, our resolution advocated for thecreationofacommissionforenvironmentalprotection.

BISHOP BACANI. Butnotinthatresolution.

MR. SARMIENTO.Wehad thatproposed resolution,but it was disapprovedby the committee. So, whatremainedwasthisCommissiononHumanRights.

BISHOP BACANI.Yes.Butletusconsiderthishypothesisalso.Icanunderstandthatthethreeconstitutionalcommissions:theCommissiononElections,theCivilServiceCommission,theCommissiononAudit,willalwayshavesomethingtodoonabigscale.But letussay-andletmebeveryhopefulforawhile-thatPresidentAquinoreallysucceedsandMinisterEnrileandGeneralRamoscooperatewithher,whichisnotanimpossibility,andthearmybecomesverydisciplinedduringthetermofPresidentAquino.WhatwillthisHumanRightsCommitteedealwith?Itcannotdealwithhumanrightsviolationsoftheoutlawsbecausetheyarebeyondthereachofthearmofthelaw.Theywilllikelynottakeeducationfromthegovernment.Asforthearmyandthepolice,inmyhypothesis,whichisnotimpossible,theywillbebehavingverywell.So,whatwilltheCommissiononHumanRightsdonow?

MR. GARCIA. There is a lot of tasks, Commissioner Bacani. The ongoing formation of consciousness ofpeopleregardinghumanrightsisaverybigtask.Secondly,itisnotonlythecitizens,butalsothemenwhoaresupposedtoupholdthelaw–soldiersandpolicemen.Trainingandformationshouldalsobeconsideredhere.And, thirdly,as Imentionedalsoearlier, justbecausewehaveresolvedourproblemsmomentarilydoesnotmeanthattherearenootherhumanrightsproblemsaroundus.Ithinkthisshouldbepartofourconsciousnessasapeople,asaresultofoursolidaritywithhumanrightsvictimsallovertheworld.

Finally,governmentscomeandgo,butifthiscommissionstays,itwillinasenseensurethathumanrightswillbeprotectednomatterwhoisPresident.Andthat, Ithink, isafarmoreimportantsafeguardforthefuturegenerationstocome.

BISHOP BACANI. Yes,butforthat,wewillnotneedaconstitutionalcommissiononhumanrights.Iwouldadmitthatweneedacommission,somekindofabody.Asregardstoeducation,Idonotknowwhethertheeducativepurposewillserveasasufficientrationaleforthis.

Letusconsidersection4oftheHumanResourcescommitteereport.Therewillbeabigtaskofeducationinvolvedhere.ThestudyoftheConstitutionandhumanrightsshallbepartofthecurriculainallschools.So,thisareawillbetakencareofforaverylargeportionofourpeople,andthenmassmediaeducationcanalsobedone.



MR. MONSOD. MadamPresident,Iwasjustwonderingwhetherwecanthinkabouttheissuealittlemoreinthissense,thatwecanseeoverthenextfewyears,maybeinfiveortenyears,giventhestructuralproblemsoftheeconomy-thepoverty,andmaldistributionofincomeandsoon-thestructureofpoliticalpowerinthecountry,therewillbeproblemsofhumanrights intheforeseeablefuture.Personally, Iwould liketosee this kind of commission expand its horizons beyond crimes involving political beliefs. Perhaps overtime, thiscouldtake intoconsiderationthewiderviewofhumanrights,socialandeconomicrights, theeducationalaspects-theresearchintothedeeperreasonsforallkindsofhumanrightsviolations.Inotherwords,thecreationofaconstitutionalcommissionisasignaloftheimportanceofhumanrights,butthemore immediate problems are these crimes involving political beliefs. But this does not mean that thiscommissioncannotbeexpandedinitsscopelateron.IdonotseeanypointintimewhereourcountrywillnotneedaCommissiononHumanRights,giventheverywidespectrumofhumanrightsthatarereallyattainableor,atleast,whatwewouldliketoattainovertheyears.

Sopersonally,Iwouldliketoseenotacloseddefinitionofthefunctionsofthiscommission,butaslightopeningsothatifwedosolvetheimmediateproblems,wecangointotheseotherproblems.

BISHOP BACANI.Yes.Thankyou.

Iwouldreallysecondthesuggestionalreadygivenbymanyofusthatwespecificallynametheviolationsthatfallunderthecompetenceofthiscommission,forthepresentatleast.Forexample,wespeakofmurderasnotincludedasahumanrightsviolationandyetsalvagingwouldbe.Itissodifficulttodefinethelineofdemarcation.

MR. SARMIENTO.Wewillwelcometheamendmentinduetime.

BISHOP BACANI.Thankyou.

MR. MONSOD.MaybewhattheCommissionermeansisthatwecanlookatitonseveralstages.Thenwecanhavemorespecificcrimesinthefirststage.

MR. RAMA.MadamPresident,CommissionerGuingonawouldliketoberecognized.

THE PRESIDENT.CommissionerGuingonaisrecognized.

MR. GUINGONA.Thankyou,MadamPresident.

IwouldliketostartbysayingthatIagreewithCommissionerGarciathatweshould,inordertomaketheproposedcommissionmoreeffective,delimitasmuchaspossible,withoutprejudicetofutureexpansion,the coverage or scope of the concept and jurisdictional area of the term“human rights”. I was actuallydisturbed this morning when reference was made without qualification to the rights embodied in theUniversalDeclarationofHumanRights,althoughlateron,thiswasqualifiedtorefertocivilandpoliticalrightscontainedtherein.

IfIremembercorrectly,MadamPresident,CommissionerGarcia,aftermentioningtheUniversaldeclaration


ofHumanRightsof1948,mentionedorlinkedtheconceptofhumanrightswithotherhumanrightsspecifiedinotherconventions.IthinkhementionedoneotherconventionwhichIdonotremember.AmIcorrect?

MR. GARCIA.IsCommissionerGuingonareferringtotheDeclarationofTortureof1985?

MR. GUINGONA.Idonotknow,buttheCommissionermentionedanother.

MR. GARCIA.MadamPresident,theotheroneistheInternationalCovenantonCivilandPoliticalRightsofwhichweareasignatory.

MR. GUINGONA. I see.The only problem is that, although I have a copy of the Universal Declaration ofHumanRightshere,Idonothaveacopyoftheothercovenantmentioned.Itisquitepossiblethattherearerightsspecifiedinthatconventionwhichmaynotbespecifiedhere.Iwaswonderingwhetheritwouldbewisetolinkourconceptofhumanrightstogeneraltermslike“convention”ratherthanspecifytherightscontainedintheconvention.

As far as the Universal declaration of Human Rights is concerned, the committee, before the period ofamendments,couldspecifytouswhichofthesearticlesintheDeclarationwillfallwithintheconceptofcivilandpoliticalrights,notforthepurposeofincludingtheseintheproposedconstitutionalarticle,buttogivethesenseoftheCommissionastowhathumanrightswouldbeincluded,withoutprejudicetoexpansionlateron,iftheneedarises.Forexample,therewasnodefinitereplytothequestionofCommissionerRegaladoastowhethertherighttomarrywouldbeconsideredacivilorsocialright.Isitnotacivilright?

MR. GARCIA.MadamPresident, Ihavetorepeatthevariousspecificcivilandpoliticalrightsthatwefeltmustbeenvisionedinitiallybythisprovision.–freedomfrompoliticaldetentionandarrest,preventionoftorture,righttofairandpublictrials,aswellascrimesinvolvingdisappearances,salvagings,hamlettingsandcollectiveviolations.So,itislimitedtopoliticallyrelatedcrimes,preciselytoprotectthecivilandpoliticalrightsofaspecificgroupofindividuals,andtherefore,wearenotopeningituptoallofthedefiniteareas.


MR. GUINGONA.Correct.Therefore,justfortherecord,theGentlemanisnolongerlinkinghisconceptortheconceptoftheCommitteeonHumanRightswiththeso-calledcivilorpoliticalrightsascontainedintheUniversalDeclarationofHumanRights.

MR. GARCIA.When Imentionedearlier theUniversalDeclarationofHumanRights, Iwasreferringtoaninternationalinstrument.

MR. GUINGONA. Iknow.

MR. GARCIA.But itdoesnotmeanthatwewill refer toeachandeveryspecificarticle therein,butonlytothosethatpertaintothecivilandpoliticalrightsthatarepoliticallyrelated,asweunderstanditinthisCommissiononHumanRights.

MR. GUINGONA. MadamPresident,Iamnotevenclearastodistinctionbetweencivilandsocialrights.


MR. GARCIA.Therearetwointernationalcovenants:theInternationalCovenantonCivilandPoliticalRightsandtheInternationalCovenantonEconomic,SocialandCulturalRights.Thesecondcovenantcontainsallthedifferentrights-therightsoflabortoorganize,therighttoeducation,housing,shelter,etcetera.

MR. GUINGONA. So, we are just limiting at the moment the sense of the committee to those that theGentlemanhasspecified.

MR. GARCIA.Yes,tocivilandpoliticalrights.

MR. GUINGONA.Thankyou.

MR. RAMA.MadamPresident,thereareonlytwomoreregisteredspeakersbutoneofthemisnotaround,soIaskCommissionerTanberecognized.

THE PRESIDENT.CommissionerTanisrecognized.

SR. TAN.MadamPresident,fromthestandpointofthevictimsofhumanrights,IcannotstressmoreonhowmuchweneedaCommissiononHumanRights.Firstofall,wearecompletelywrongifwethinkthattheAquinogovernmenthasbroughtaboutpeace.Therearemorecasesofsalvagingnowthantherewasevenbefore.Andjustthisweek,wehadtwoinourarea-onewaselectrocutedintheMakatiPoliceUnitbecausetheywantedtoexactaconfession;andtheotherwastorturedintheManilaPoliceUnit.So,weareunderillusionifwethinkthatevenafter100years,wewillhavenohumanrightsproblems.Anotherreasonis,humanrightslawyersarevery,veryscarce.Wheneverweneedthem,wecanonlyfindSocorFelyorRene;theyareveryscarce.Evenmyownfamilyoflawyersdoesnotknowanythingabouthumanrightslaw.

Anotherreasonisthathumanrightsvictimsareusuallypenniless.Theycannotpayandveryfewlawyerswillacceptclientswhodonotpay.Andso,theyaretheonesmoreabusedandoppressed.Anotherreasonis,theonesmoreabusedandoppressed.Anotherreasonis,thecasesinvolvedareverydelicate-torture,salvaging,pickingupwithoutanywarrantofarrest,massacre-andthepersonswhoareallegedlyguiltyarepeopleinpowerlikepoliticians,meninthemilitaryandbigshots.Therefore,thisHumanRightsCommissionmustbeindependent.

Iwouldlikeverymuchtoemphasizehowmuchweneedthiscommission,especiallyforthelittleFilipino,thelittleindividualwhoneedsthiskindofhelpandcannotgetit.AndIthinkweshouldconcentrateonlyoncivilandpoliticalviolationsbecauseifweopenthistoland,housingandhealth,wewillhavenoplacetogoagainandwewillnotreceiveanyresponse.Ithinkourhumanrightslawyers,especiallythosebelongingtotheMABINIandFLAG,areoftheheroesofmartiallaw.

Thankyou.

MR. RAMA.MadamPresident,therearenomoreregisteredspeakers,so,Iaskthatweclosetheperiodofsponsorshipanddebatesowecanmoveontotheperiodofamendments.

THE PRESIDENT.Isthereanyobjection?(Silence)TheChairhearsnone;themotionisapproved.

SUSPENSIONOFSESSION

MR. RAMA.Thereisarequestthatwesuspendthesessionforafewminutes.


THE PRESIDENT.Thesessionissuspended.

It was 4:44 p.m.

RESUMPTIONOFSESSION

At 5:01 p.m., the session was resumed with the Honorable Francisco A. Rodrigo presiding.

THE PRESIDING OFFICER (Mr. Rodrigo). Thesessionisresumed.

MR. RAMA.Mr.PresidingOfficer.


THE PRESIDING OFFICER (Mr. Rodrigo). TheFloorLeaderisrecognized.

MR. RAMA. Onaccountoftheimpendingtyphoon,Imovethatweadjournthesessionuntiltomorrowatnine-thirtyinthemorning.

MR. MAAMBONG. Mr.PresidingOfficer,beforetheChairrulesonthemotion,Iwouldliketomanifestmyreservationtofileamotiontomorrow,concerningthepresentarticlewearediscussingwhichIintimatedduringthecaucus.Iwilldoittomorroworotherwise,itwillbedonebyCommissionerCalderon.

Thankyou.

ADJOURNMENTOFSESSION

THE PRESIDING OFFICER (Mr. Rodrigo). Letthatreservationberecorded.

Isthereanyobjectiontothemotionforadjournment?(Silence)TheChairhearsnone;thesessionisadjourneduntiltomorrowatnine-thirtyinthemorning.

It was 5:01 p.m.


R.C.C.NO.67

Wednesday,August27,1986

OPENINGOFSESSION


At 9:58 a.m., the President, the Honorable Cecilia Munoz Palma opened the session.

THE PRESIDENT.Thesessioniscalledtoorder.

NATIONALANTHEM

THE PRESIDENT.EverybodywillpleaserisetosingtheNationalAnthem.

EverybodyrosetosongtheNationalAnthem.

THE PRESIDENT.EverybodywillpleaseremainstandingfortheprayertobeledbytheHonorableRicardoJ.Romulo

EverybodyremainedstandingforthePrayer.

PRAYER

MR. ROMULO.DearGod,inthewordsofSt.Francis:

MakeusaninstrumentofYourpeace,Wherethereishatred,letusbringlove,Wherethereisinjury,pardonWherethereisdoubt,faithWherethereisdespair,hopeWherethereisdarkness,lightWherethereissadness,joy.

Dispel,therefore,fromourheartsthosedarkshadowsofsuspicionandfearwhichbecloudourmindsandourvision.

IndraftingthisnewCovenantforallourpeople,teachustoacceptwithserenitythethingsthatcannotbechanged.Giveuscouragetochangethethingsthatcanandshouldbechanged.And,aboveallelse,grantusthewisdomtodistinguishonefromtheothersothatwecanbesparedfurtherstrifeanddissension.

ThisweaskinthenameofourLord,JesusChrist.Amen.

ROLLCALL

THE PRESIDENT.TheSecretary-Generalwillcalltheroll.

THE SECRETARY-GENERAL,reading:

Abubakar……….Present Natividad……PresentAlonto…….…......Present Nieva………...PresentAquino………….Present Nolledo……...PresentAzcuna……….…Present Ople…………PresentBacani……….….Present Padilla……….PresentBengzon…….….Present Quesada…….Absent


Bennagen……...Present Rama……….....PresentBernas…………Present Regalado……..PresentRosarioBraid…..Present Reyesdelos......PresentBrocka…………Present Rigos…………PresentCalderon………Present Rodrigo………PresentCastrode……....Present Romulo………PresentColayco…….….Present Rosales…….....AbsentConcepcion…...Present Sarmiento……PresentDavide………...Present Suarez………..AbsentFoz………….....Present Sumulong……Present Garcia……..…..Present Tadeo………....PresentGascon……..…Present Tan……………PresentGungona……..Present Tingson…….…PresentJamir……….…Present Trenas………....AbsentLaurel………....Absent Uka………....…PresentLerum………...Present Villacorta……...AbsentMaambong…..Present Villegas………..PresentMonsod……....Present

ThePresidentispresent.

Therollcallshows36Membersrespondedtothecall.

THE PRESIDENT.TheChairdeclaresthepresenceofaquorum.


THE PRESIDENT. TheFloorLeaderisrecognized.

MR. RAMA. Madam President, I move that we dispense with the reading of the Journal of yesterday’ssession.

THE PRESIDENT. Isthereanyobjection?(Silence)TheChairhearsnone;themotionisapproved.

APPROVALOFJOURNAL

MR. RAMA. Madampresident,ImovethatweapprovetheJournalofyesterday’ssession.



MR. RAMA. MadamPresident,ImovethatweproceedtotheReferenceofBusiness.

THE PRESIDENT. Isthereanyobjection?(Silence)TheChairhearsnone;themotionisapproved.


TheSecretary-GeneralwillreadtheReferenceofBusiness.

REFERENCEOFBUSINESS

The Secretary-General read the following Communication, the President making the corresponding reference:

COMMUNICATION

Communication from Mr. Edgardo J. Angara, President, University of the Philippines, Quezon City,transmittingacopyoftheExecutiveSummarysubmittedbyAtty.CasianoO.Flores,HeadoftheDivisionofContinuingLegalEducationoftheUPLawCenterwhohadbeenconductingaseriesof2-day“constitutionalmini-conventions’ inthevariousregionsof thecountryaspartof theUPConstitutionProject togettheperceptions and reactions of various sectors in the deliberations/ discussions of the Constitutional

Commissionof1986.

(CommunicationNo.634-ConstitutionalCommissionof1986)

TotheSteeringCommittee.

MR. RAMA.MadamPresident.

THE PRESIDENT.TheFloorleaderisrecognized.

CONSIDERATIONOFPROPOSEDRESOLUTIONNO.539(ArticleontheConstitutionalCommissions-CommissiononHumanRights)

Continuation

PERIODOFAMENDMENTS

MR. RAMA.WearenowintheperiodofamendmentsontheArticleontheCommissiononHumanRights.Imovethatwetakeupthesaidarticle.


MR. MAAMBONG.MadamPresident.

THE PRESIDENT.CommissionerMaambongisrecognized.

MR. MAAMBONG. Madam President, yesterday I entered in the record a reservation to file a motionconcerningtheArticleontheCommissiononHumanRights.Iamnowpreparedtopresentthemotion.

Madampresident,ImovethatwecreateorestablishtheCommissiononHumanRights,notasanindependentconstitutionalcommissionbutthroughCongressbymandateoftheConstitution.

MadamPresident,thismotionisfiledbecauseofthefeelingofsomeCommissionersthatthisCommissiononHumanRightsshouldonlybeconstitutionallymandatedandnotcreatedasanindependentconstitutionalcommission,andImentionedthisinourcaucus.


THE PRESIDENT. Canthatnotbeinformofanamendment?

MR. MAAMBONG.Yes,MadamPresident.

THE PRESIDENT. So, to resolve the particular motion of the Floor Leader, we shall now continue thedeliberations. We are now in the period of amendments. May we call the honorable members of theConstitutionalCommissionwhoareinvolvedinthisparticularmatter.

MR. MAAMBONG. Yes, Madam President. As a matter of fact, we feel that this is a prejudicial questionwhich should be resolved, and if the motion is approved on that assumption, then another motion willbepresentedbeforethecommitteetodeletethewholeArticleontheCommissiononHumanRightsandsubstituteitwithonesectiontobetransposedtotheArticleonGeneralProvisionswhichwillbepresentedforapproval.Thisis,ofcourse,ontheassumptionthatourmotionwillbeapproved.

THE PRESIDENT. WewillgivethemembersofthecommitteetimebecausetheyhavetobeinformedofthismotionandbegivenachancetoconferamongthemselvesastotheactiontheywilltakewithrespecttotheCommissioner’smotion.

MR. MAAMBONG. Yes,MadamPresident.Asamatteroffact,IwasinformedbyCommissionerCalderonthathewillspeakinfavorofmymotion.

Iwillnowpresentacopyofthisformulationtothecommittee.

SUSPENSIONOFSESSION

THE PRESIDENT.Inthemeantime,thesessionissuspended.

It was 10:07 a.m.

RESUMPTIONOFSESSION

At 10:26 a.m., the session was resumed.





MR. RAMA.IwouldliketoaskthatCommissionerMaambongberecognized.

THE PRESIDENT. CommissionerMaambongisrecognized.

MR. MAAMBONG.MadamPresident,mayIbeallowedtowithdrawthemotionwhichIpresentedearlier.


ConsideringthatwearenowintheperiodofamendmentsonthisArticleontheCommissiononHumanRights and in its place substitute this provision which reads:“SECTION __ CONGRESS SHALL CREATE ACOMMISSIONTOINVESTIGATEVIOLATIONSOFINDIVIDUAL,CIVILANDPOLITICALRIGHTSCOMMITTEDBYORAGAINSTOPUBLICOFFICERS,CIVILLANS,POLICEANDMILITARYAUTHORITIESORPRIVATEPARTIES. ITSHALLHAVESUCHPOWERSANDFUNCTIONSASMAYBEPROVIDEDBYLAW.”

Thismotion,anamendmentbysubstitution,ispresentedbyCommissionersCalderon,Jamir,Colayco,deCastro, and this humble Member. However, I reserve the right of Commissioner Calderon to talk on themotion.Inthemeantime,Iamaskingthecommitteeforitscomment.

THE PRESIDENT.Isthecommitteereadytoreactnow?

MR. MONSOD.Yes. It is the committee’s position that this proposed special body, in order to functioneffectively,mustbe investedwithan independence that isnecessarynotonly for itscredibilitybutalsofortheeffectivenessofitswork.However,wewanttomakeadistinctioninthisConstitution.Maybewhathappenedwasthatitwasreferredtothewrongcommittee.Intheopinionofthecommittee,thisneednotbeacommissionthatissimilartothethreeconstitutionalcommissionsliketheCOA,theCOMELEC,andtheCivilService.Itneednotbeinthatarticle.

As a matter of fact, if the Commissioner could recall, in the case of the Ombudsman, which is a bodycreated by the Constitution, it is not considered one of the constitutional commissions.The intent hereofthecommitteeisnotthatitwillbethefourthconstitutionalcommissionwithinthatarticle,butmerelytoestablishitasanindependentbody.Weneednotcallitacommission,anindependentofficethatcanfunctionintheareaofhumanrights.

Oursuggestion,therefore,isthatweshouldapprovethisregardlessofwhereweendupputtingitintheConstitution.ItneednotbeintheArticleonConstitutionCommissions.WeareaskingthisCommissiontoapprovethecreationofanindependentbody,independentinthesensethattheprocessofnominationandappointmentinthesensethattheprocessofnominationandappointmentwillbeshieldedfrompoliticsandourproposalisthatitcanbethroughtheJudicialandBarCouncilandfiscalautonomy.Thisway,wearesurethatthisspecialbodywithinthosetermsofreference,thenmaybewecanseparatethisfromtheissueofwhyweaddinganextraconstitutionalcommission.



MR. MAAMBONG.MayIclarifythethinkingofthecommittee,madamPresident?First,thecommitteeissayingthattheCommissiononHumanRightsmustbeanindependentbodybutitisnotinthecategoryofthethreeconstitutionalcommissions.IsthatthethinkingoftheCommittee?

MR. MONSOD.Yes.

MR. MAAMBONG.Consideringthatitisnotinthecategoryofthethreeconstitutionalcommissions,cantheCommissiononHumanRights,ifcreated,bedissolvedbyCongress?Thatisoneconcernalso.

MR. MONSOD.No.Wewouldlike ittobeconstitutionalcreationbecausewecouldfeeltheproblemsofhumanrightsparticularlyinthenextfewyears.Weforeseeintheforeseeablefuturethatwewillhavemore


problemsofhumanrights,even inthenarrowsenseof thepoliticalandcivil rights.Butwealso foreseethat over time as we become more developed, as our institutions function normally, the scope of thiscommission,sinceitisaconstitutionalbody,canbeenlargedtoincludesocialandeconomicrights.ItcanincludetheconceptsproposedbyCommissionerRosarioBraidinlookingintothecausesoftheviolationsofhumanrights,bothintheirnarrowandbroadsenses.Therefore,ithasaplaceintheConstitutionbecausethehorizonforitsfunctionsiswellbeyondtheimmediateproblems.

MR. MAAMBONG.Inotherwords,theCommissionerissayingthatitwillnotbecomefunctusofficioatall.Itwillbeacontinuingbody,regardlessofwhetherithasperformeditsfunctioninthefieldofhumanrights,asfarastheindividual,politicalandcivilrightsareconcerned.

MR. MONSOD.Yes,anditcanexpanditsscopeastheneedandcircumstancesarisebecausehumanrightsisaverybroadconcept.Theonlyreasonwearelimitingthisconceptnowandtryingforverymodestobjectivesatthistimeisbecausewedonotlikethecommitteetodiluteitseffortsatthistimewhenthereareveryrealandconcreteproblemsthathavetobeaddressed.


MR. MAAMBONG.ThethirdpointIwouldliketobeclarifiedaboutistheofficersorthefunctionariesoftheCommissiononHumanRightsstartingwiththeactingchairmanormembersthereof,whatevermaybethecomposition.Iamreferringtotoplevelofficers.Aretheyimpeachable?

MR. MONSOD.Wedonotconceivetheprocessofimpeachmentforthem.WemayleaveittoCongresstoprovidethemeansfortheirremoval.LetustakethecaseoftheSandiganbayan.Theprocessandthecausesfortheremovalof itsofficersare left toCongressbecauseeven if thisSandiganbayan isaconstitutionalcreation,therewillstillbeaneedforanactofCongressinordertoputinthedetailsoftheimplementationofthisspecialbody.

MR. MAAMBONG. Inotherwords,theofficersthereofwillbecontradistinguishedwiththeofficersoftheOmbudsman because the Ombudsman officers are impeachable officers. Here we are contemplating asituationwheretheymayberemovedunderthecivilservicelaworbylawstobeprovidedbyCongress.

Incidentally, the Commissioner mentioned Sandiganbayan. I think the impeachability of Sandiganbayanofficersisonlyfoundinlaw.Inlastdiscussionthatwehad,therewasalreadyanagreementwiththeCommitteeonConstitutionalCommissionsandAgenciesthatsaidofficersarenotsupposedtobeimpeachable.

MR. MONSOD.Yes,byvirtueof theamendmentofCommissionerRegaladowhereinweare limitingthemethodofimpeachmentonlytothosespecificallyprovidedintheConstitution.

MR. MAAMBONG. Personally,Iunderstandthesentimentsofthecommitteeaboutthis.ButImustreflectfortherecordthattheIamonlyoneoftheproponentsofthismotion;therearealsootherproponentslikeCommissionerCalderon,Jamir,ColaycoanddeCastro.IwouldliketoknowtheirsentimentsbecauseIamonlythepresentorofthismotion.

Thankyou,MadamPresident.


MR. JAMIR.MadamPresident.

THE PRESIDENT.CommissionerJamirisrecognized.

MR. JAMIR.IagreefullywiththesentimentsofCommissionerMaambong.

MR. MONSOD.Thankyou.

THE PRESIDENT.CommissionerdeCastroisrecognized.

MR. DE CASTRO. Thankyou,MadamPresident.

MayIaskjustonequestionofthecommittee?IheardtheCommissionerstatethatthiswillbeasectionintheConstitution.DidIhearhimright?

MR. MONSOD.No,ImentionedthatthisneednotbeplacedintheArticleonConstitutionalCommissions;itcanbeinothersections.ItcanevenbeintheArticleonGeneralProvisions.

MR. DE CASTRO.WheredoestheCommissionerintendtoplacethisatthistime.

MR. MONSOD.Frankly,wewouldliketobeguidedbythisCommissionregardingtheappropriateplacetoputthisprovisionin.

MR. DE CASTRO.Will the formation Commissioner Maambong on this matter still be subject to certainamendments?

MR. MONSOD.Yes,butIbelievehewithdrewitwhenweexplainedourposition.Wearealwaysopentoamendmentswithintheframeworkofourconcept.

MR. DE CASTRO.Then,ifwecanbefurnishedacleancopyofthisformulation,wecanuseitsothatwecanbeguidedformallyonhowtomakeouramendments.

Thankyou.

MR. MAAMBONG.Tobeclarifiedinthismatter,wehavepresentedbeforethecommitteeouramendmentby substitution and it is now on record.With the thinking of the committee regarding the issues whichwehaveraisedandtosavetime, Iamhopingthatthecommitteecouldreformulate,onthebasisofourproposedamendmentbysubstitution,adefiniteprovisionwhichwecouldworkon.

However. Iwould liketoaskthecommitteeonequestionagain.Assumingthatthereformulationofourproposedamendmentbythecommitteewillbecarried,woulditbeonesectiononly? IaskbecausewehavemadereferencetotheArticleontheOmbudsman,anditincludesothersectionswhichprovideforitsfunctions.Wearethinkingalongthelinethat,perhaps,ifthecommitteewillagree,oncethemembersreformulatethesection,thenitwouldonlybeonesectionandalltheotherprovisions,likethefunctionsoftheofficewillhavetobeprovidedforbylaw.Ireallydonotknowthethinkingofthecommittee;thatiswhyIamasking.


MR. RODRIGO.MadamPresident,parliamentaryinquiry.DidIhearitcorrectlythatCommissionerMaambonghadwithdrawnhisproposedamendment?


MR. MAAMBONG. No.

THE PRESIDENT. Notyet.

MR. MAAMBONG.Itisstillonthestream.

MR. RODRIGO. Therefore,Iwouldliketosupportthatamendment,MadamPresident.

MR. DAVIDE.MadamPresident.

THE PRESIDENT. IbelievethatCommissionerSarmientowasintendingtoreacttothequestionpropoundedbyCommissionerMaambong.

MR. SARMIENTO. MadamPresident,mayIaskthatCommissionerDavideberecognized.

THE PRESIDENT. CommissionerDavideisrecognized.

MR. DAVIDE.Thankyou,MadamPresident.

Inordernottolosetime,Isuggestthatnoreformulationbeundertakenbythecommittee.Wecouldworkon the framework as presented, but it is to be clearly understood that it will not to be considered as aseparatesubdivisionoftheArticleonConstitutionalCommissions.

LetustotallydisregardtheheadingandsubheadingaboveSection1,andwebegintoworkfromSection1.AndsinceitmightbeincludedintheArticleonGeneralProvisions,Section2maybetreatedonlyasthesecondparagraphofonesinglesectionofthisparticulararticle.Thereisnoneedreallyforareformationoftheentireproposedsection.

MR. MAAMBONG. MadamPresident.

THE PRESIDENT. MaywehearCommissionerColaycofirst?Hemayhavesomeideasonthis,andthenwewillcalloncommissionerVillegas.

MR. COLAYCO. ThankyouMadamPresident.Whenthismatterwasfirstproposedyesterday,IassuredthecommitteethatIwouldsupporttheproposalasitwaspresented,althoughsomeofmycolleagueshadalreadydeclaredtheirreservationsaboutmakingitpartof theArticleontheConstitutionalCommissions.Mythinkingat that timewas this,and Iwillbehonest, that if the body did not approve the proposal as worded in Proposed Resolution No. 539, I wasgoingtomovethatitbeamandatedcommission.Afterhearingthebriefexplanationsofthecommittee,personally,Iamwillingtogoalong.Inotherwords,thecommissionwillstillbeaconstitutionalcommissionbutnotaseparateconstitutionalcommission.


MR. VILLEGAS.MadamPresident.

THE PRESIDENT.CommissionerVillegasisrecognized.

MR. VILLEGAS. Madam President, this is just to present an analogous situation. The Central MonetaryAuthority,whichweapprovedintheArticleonNationalEconomyandPatrimony,isamandatedbodywhichCongresscannotdissolveatwill,andisindependentofthePresident.ThatispreciselywhywewantedaCentralMonetaryAuthority.So,moreorless,thatcouldbetheanalogoussituationthatwouldsupportthecommittee’sviews.

MR. SARMIENTO. MayweknowifthemanifestationofCommissionerDavidesatisfiesCOMMISSIONERDECastro;thatis,westartwiththisarticleorthisdraftaspresentedbythecommitteesoastosavetime?

MR. DE CASTRO.Aswehavestated,this independentbodywillhavetobecreatedbylawtoincludeitsfunctionsandtheremovaloftheofficersthereto,so,itwillbequitedifficultifwefollowtheformulationinSections1,2,and3oftheProposedResolutionNo.539.So,IwouldthensupportthemotionofCommissionerMaambongthattherebeanindependentbody,liketheCommissiononHumanRights,tobecreatedbylaw.



MR. MAAMBONG. Thereis,infact,anunresolvedquestionwhichIpresentedtothecommittee.Thequestionwas:Inthereformulationofthecommittee,wouldthisprovisionbeanothersectionorwoulditcoveralsofunctions,dutiesandothers,liketheOmbudsman?Ontheassumptionthatwouldbeso,Isuggestthattheproposedsectionwhichwehavepresentedbeforethecommitteebetheleadsectionthatwillbeamendedwithoutmakingreferencetothepresentformulationbecause itwouldonlyconfuseus.Atanyrate, thissectionthat Iampresentingcanbeamendedanytime.Wecanadd,deduct,and, forpurposesofclarity,makereferencetothesectionswhicharenowinthecommitteereport.

Woulditbeaone-sectionthingorwoulditbeseveralsections?

MR. SARMIENTO. Itwillnotbeaone-sectionthing.IfwewillnotetheArticleonAccountabilityofPublicOfficers, when we created the Sandiganbayan, we enumerated its powers and functions, but it was notaone-sectionthing.Maybewecanhavetwoor threesectionsonthis independentbodyknownas theCommissiononHumanRights.


THE PRESIDENT.CommissionerMaambong’sproposedamendmentposesaverybasicquestion.

MR. MAAMBONG. Yes,madamPresident.

THE PRESIDENT.TheproposedamendmentofCommissionerMaambongistotheeffectthatisCongress


which shall create, whereas it is the sense of the committee that the creation of this body be alreadyenshrinedintheConstitution.

MR. MAAMBONG.Yes,Iwasabouttogointothatbysuggestingtothecommitteethatperhapsweshouldask the commission itself to determine at first blush whether we should have this body created by theConstitutionorwhether itshouldbecreatedbyCongress.That ispreciselywhy Iwantthefirstmotion Ipresentedearliertobeclarified.Idonotknowwhatisthethinkingofthecommitteeonthismatter.

MR. SARMIENTO. ItwillbecreatedbytheConstitution,notbyCongress.CommissionerMonsodexplainedwhyitshouldbeshieldedfromtheexecutivepowerorfrompoliticalinterference.Therewasthemanifestationmade by Commissioner Villegas. It should be similar to that independent body, the Central MonetaryAuthority.

MR. MAAMBONG. Iunderstandthat.

THE PRESIDENT.Inotherwords,thecommitteedoesnotaccepttheproposedamendmentofCommissionerMaambongasformulated.

MR. MAAMBONG. Yes,thatisquiteclear.ThatiswhyIwasthinkingwhetherweshouldsubmitthatissuetothebodyfirstbecausethatisbasictoalltheprovisionswhichwewillformulatedlateron.

THE PRESIDENT.CommissionerRodrigoisrecognized.

MR. RODRIGO. Madam President, I would like to say a few words in favor of the amendment proposedbyCommissionerMaambong.Iamafraidthat,liketheOmbudsmanwhichIalsoopposed,thisofficewillbeapapertiger ifwemake it independentofthePresident. Itspowersaremerelyto investigateandtorecommend.

Letusvisualizethisoffice,if it iscreatedbytheConstitution.WhentheConstitutionisapproved,wewillneedanimplementingacttocreatethisoffice,andespeciallyanappropriationforthisoffice.ItwillbeanofficesegregatedfromthePresident.Theappropriationwillbeforthethreecommissioners,forpersonnel,officeequipmentandofficerental.TheofficewillbeinManila.HumanrightsviolationsoccuralloverthePhilippines, Madam President.Who will investigate human rights violations in Mindanao, in theVisayas,Northern Luzon and in Bicol?There are only three Commissioner, so are we going to give them branchofficeseverywhere?Thiswillbeveryexpensive.So,theywillhavetodependonthepresentinvestigatingagencies of the government which are under the President. But since this office is segregated from thePresident,itwillhavenopowertocompelpoliceagenciesorfiscalstoinvestigateandtoprosecute.So,itwilljustbeapapertiger.AsIsaidoftheOmbudsman,wewilljustagainberaisingthehopesofourpeople-falsehopes-thathere,atlast,isanofficeandwewillsolvehumanrightsviolations.

IdonotknowwhyweseemtohavelostallourconfidenceinthePresidentandalsointhemembersofourCongress.Werefertothemaspoliticians,andwesaywecannottrustpoliticians.Butrememberthatthesepoliticianswillbeelectedbythepeople.Theyarerepresentativesofthepeople.WeseemtohavedevelopedaparanoiajustbecauseofoneMarcos.Thatismybasicobjectiontothis.So,IfavortheproposedamendmentofCommissionerMaambong.LetCongress,composedofelectiveofficialselectedbythepeople,enactthelawcreatingthisofficeandletitbeundertheexecutivedepartment.Otherwisewewillbeagaincreatinganotherofficewhichisapapertiger.Wewillspendthemoneyofthepeopleuselessly.PublicfundswillbeappropriatedforanofficewhichisonlyinManila.


Furthermore,wewill justberaisingfalsehopesamongourpeople.Wedonotwant todisillusionthemanymore.

Thankyou.


THE PRESIDENT.CommissionerRamaisrecognized.

MR. RAMA.IthinkoneofthebasicquestionsthatweshouldansweriswhetherornottheCommissiononHumanRightsisnecessaryandwhetheritshouldbeplacedintheConstitution.

Letmecallattention to the fact thatall over the world, there is avery grave concern for people whosehumanrightshavebeenviolated.Thiscrimehasbeenconsideredan internationalcrime.Wewillnoticethattherearenowinternationalorganizationsonhumanrightsandthateventhebiggestandthemostprestigiousinstitutionsandfoundationshavegrantedawardstothosepeoplewhofoughtforhumanrights.Therefore,itisnecessarythatweshouldrecognizedtheimportanceofhumanrightsandtheCommissiononHumanRightsorabodyonhumanrightstobeincludedinourConstitution.Thatisthepointpreciselyofthecommittee.Wecannotjustignorethisveryimportantproblemonhumanrightswhichisnowtheconcernallovertheworldbecauseofthebrutalviolationofhumanitybydictatorshipsandotheragencies.Therefore,asfarasthatisconcerned,weshouldrecognizedtheimportanceofabodyonhumanrights.

Thereisnobasicconflict,MadamPresident,becauseCommissionerMaambong,aswellasthecommittee,hasagreedthatitneednotbeaconstitutionalcommissionwiththerightsandpowersandthestatusoftheotherconstitutionalcommissions,liketheCOAandtheCOMELEC,butdefinitelyweshouldincludeitintheConstitution.

That is theonlybasicproblemandthecommitteehasagreedto that.So, there isnobasicconflict. It isamatterofdefinitionofwhatarethepowers.Therefore, IagreedwithCommissionerDavidethat inthemeantimethatwehaveformulatedapolicyonthestatusofthatbody,wemaycontinuetheamendmentstotherestofthesection,whichmerelydefinesthefunctionandthequalificationsofthemembersofthiscommission.



THE PRESIDENT.IsCommissionerNolledostillhere?

IsCommissionerRodrigothrough?

MR. RODRIGO. No, not yet, Madam President. There is no disagreement that we should have such anoffice.,suchabody.Callitanoffice.Callitacommission.IalsoagreethatwemusthaveaprovisionintheConstitution.That is precisely the proposed amendment by Commissioner Maambong; that we enact aprovisionintheConstitutionmandatingCongresstocreatethatbody.So,thereisnodisagreementonthat.Thedisagreement,asfarasIamconcerned,isinisolatingthisofficeorthiscommissionfromthePresident,


but,atthesametime,notgivingthiscommissionenoughpowertoactonitsownbutmerelytoinvestigateviolationsalloverthePhilippines,withoutanypersonnelofitsown.ItwillhavetodependonthepersonnelintheexecutivedepartmentwhichisunderthePresidentbutissegregatedfromthePresident.

MR. COLAYCO.MadamPresident.

THE PRESIDENT. CommissionerNolledoisrecognized.

MR. NOLLEDO.IamgivingwaytoCommissionerColayco.IwilljustspeakafterCommissionerColayco.

MR. COLAYCO. JustoneclarificatoryquestionforCommissionerRodrigo.

THE PRESIDENT. CommissionerColaycoisrecognized.

MR. COLAYCO. EarliertheCommissionergavemetheimpressionthathewasagainsttheentireideabecausehewastalkingaboutthe“toothlesstiger,”thewayhealsotalkedabouttheOmbudsman.Butafterwardshesaidthathehadnoobjectiontotheprinciples.

MR. RODRIGO. No,asamatteroffact,IaminfavoroftheproposedamendmentofCommissionerMaambongwhichproposesaprovisioninourConstitutiontomandateCongresstocreatethisbody.Mydisagreementisinthestatusoftheoffice.Whatisthestatusofthisoffice?WillitbesegregatedfromthePresidentbut,atthesametime,nothavepowerstoactonitsown?Mystandisthatitshouldbeanofficewithintheexecutivedepartment,sothatitcangetthecooperationofthewholeexecutivedepartmentininvestigatingcasesalloverthePhilippinesandinprosecutingorrecommendingtheprosecutionofthosecasesanywhereinthePhilippines.WealreadyhavetheofficesandthepersonnelundertheexecutivedepartmentalloverthePhilippinesforthis.

MR. COLAYCO. TheCommissioners’mainobjectionthenisthemechanicssuggestedbythecommitteeineffectingtheprotectionintendedforthosewhoarevictimsofviolationsofhumanrights.

MR. RODRIGO. Itisnotonlythemechanics,butitisalsotheform.IsaidformbecauseIdonotknowwhatthisis.Ifwecreateanofficeitshouldbeeitherunderthejudiciaryortheexecutiveorthelegislative,butthisonewillbeinlimbo.Itisnotevenaconstitutionalcommission.

MR. COLAYCO. TheCommissioner’searlierobjectionwasthat theOfficeof thePresident isnot involvedintheproject.HowsurearewethatthenextPresidentofthePhilippineswillbesomebodywecantrust?Remember,evennowthere isagrowingconcernaboutsomeof thebodies,agenciesandcommissionscreatedbyPresidentAquino.

MR. RODRIGO.Ifthatisthecase,howsurearewethatthemembersofthecommissionarepeoplewecantrust.AtleastthePresidentiselectedbythepeople.

MR. COLAYCO. Yes,butthePresidentwillbetheonewhowillbehandlingthewholecommission,andhecangetawaywithanythinghewants.

MR. RODRIGO. WhywecanwenottrustthePresident,electedbythepeople,andweseemtobeputtingmoretrustonacommissioncomposedofthreepeople,appointedbythePresident?


MR. COLAYCO.Iwillleaveittothebody.

MR. MONSOD.MadamPresident.

THE PRESIDENT.Thecommitteedesirestoreactnow.CommissionerMonsodisrecognized.


MR. MONSOD.We see the merits of the arguments of Commissioner Rodrigo. If we explain to him ourconcept,hecanadviseusonhowtoreconcilehispositionwithours.ThepositionofthecommitteeisthatweneedabodythatwouldbeabletoworkandcooperatewiththeexecutivebecausetheCommissioneris right. Many of the services needed by this commission would need not only the cooperation of theexecutivebranchofthegovernmentbutalsoofthejudicialbranchofgovernment.Thisisgoingtobeapermanentconstitutionalcommissionovertime.Wealsowantacommissiontofunctionevenundertheworstcircumstancewhentheexecutivemaynotbeverycooperative.However,thequestioninourmindis:Canitstillfunctionduringthattime?Hence,wearewillingtoacceptsuggestionsfromtheCommissionerRodrigoonhowtoreconcilethis.Wealsowouldliketobuildinsomesafeguardsthatitwillnotberendereduselessbyanuncooperativeexecutive.

MR. NOLLEDO.MadamPresident.


MR. NOLLEDO.Iwouldliketospeakfortwoorthreeminutesagainsttheamendment.

THE PRESIDENT.TheCommissionermayproceed.

MR. NOLLEDO. Thankyou.

IbegtodisagreewithCommissionerRodrigothattheCommissiononHumanRightsisapapertiger.IhavesomeamendmentsherethatwouldstrengthenthepowersoftheCommission. InmyNo.3amendmentdistributedtotheMembersofthisCommission,Iwantedtoaddaftertheword“measures”online7,page2, an amendment that will give the Human Rights Commission the power to provide appropriate legalmeasureswhichmayincludeinjunctivereliefandissuanceofthewritofhabeascorpus.IheardthesameargumentsfromCommissionerRodrigowhenhetalkedagainstthecreationoftheOmbudsman.

Hisargumentseemsabrokenrecord.Hesaidthatwearesufferingfromaparanoiawhichisunderstandableandhewantsto leavetoCongressthepowertocreate.Whydowehavetopassthebuck?HewantstomandatetheCongressthepowertocreate.Whydowehavetopassthebuck?HewantstomandateCongresstocreatethebodysimilartotheHumanRightsCommissionnowunderconsideration.IthinkweshouldnotpassthebucktoCongress.WeshouldnotmissthatgoldenopportunityofcreatingthisveryimportantbodybasedonthesadexperienceswehadduringtheMarcosregime.Wearelearninglessonsfromhistory.Butifweremainadamantbynotadoptingremediestoavoidthecondemnablepracticesofthepastregime-Irefer to theMarcosregime- thenhistory repeat itself.Wewill, in thewordsofCommissionerAquino,bejudgedharshlybythefuturegenerations.


MadamPresident,formanyyearsduringtheMarcosregime,humanrightswereabundantlyviolated.Evenin the present regime, we still have these violations. Commissioners Rodrigo, Rama and I were victimsof the violations of human rights when, without previous charges, we were sent to jail.The concern fortheprotectionofhumanrights isworldwideas indicatedbyCommissionerRama.Theprovisionsontheconstitutional authority known as the Human Rights Commission underscore the need to strengthen amechanismthatwilltrulyprotecthumanrightsandvindicatevictimsofviolationsthereof.

IhavefiledaresolutiontoincludeintheDeclarationofPrinciplesaprovisionthattheStatewillrespectthedignityof thehuman personalityand guarantee full respect for humanrights. A nationwhichdoes notintenselyvaluehumanrightsdoesnotdeservetherespectofotherfreedom-lovingnations.

By setting up the Commission on Human Rights as a veritable watchdog and guardian of our peopleagainstviolationsofhumanrights,wemanifesttotheworldourrespectforhumandignityandhonor. IcannotunderstandthehesitationtosetuptheCommissiononHumanRightsjustbecausewehaveothercommissions already set up in the 1986 Constitution. The sufferings and the anguish of the victims ofviolationsofhumanrightsinthePhilippinesandeverywhereintheworldshouldfindsympathyintheheartofeveryoneofus,includingtheheartofCommissionerRodrigowhohimselfsufferedinjailbyreasonoftheabundantviolationsofhumanrightsduringtherepressiveMarcosregime.LeavingtoCongressthecreationoftheCommissiononHumanRightsisgivinglessimportancetoatrulyfundamentalneedtosetupabodythatwilleffectivelyenforcetherulesdesignedtoupholdhumanrights.



MR. PADILLA. Madam President, Commissioner Maambong proposed the substitution of this proposedArticleonCommissiononHumanRightstoonesection,probablytobeinsertedintheGeneralProvisions.CommissionerDavidesuggestedthatwecontinuetheamendmentsofthecommitteedraft.IbelievethattheMaambongrecommendationforasubstitutesectionisanaprioritythatdeservesourpriorconsideration.

Inlinewithmyinterpellationsyesterday,Iamoftheopinionthatthisdraftofthecommitteeisnotnecessarybecause,fortheprotectionofhumanrights,wehavetheentiremachineryofgovernment,particularlythelawenforcementagencies,theprosecutingarmandtheadministrationofjustice.ButiftherebeneedtoinsertasectionintheConstitution,thenweshouldconsiderthesubstituteamendmentofCommissionerMaambonginsteadofthesuggestionofCommissionerDavide,becauseifthisCommissiondecidesforonesectioninanotherportionoftheConstitution,likeintheGeneralProvisions,ratherthanaseparatearticle,thatissuewouldbeinthenatureofaprejudicialquestion.

Togive,asCommissionerNolledoclaims,eveninjunctionreliefandissuanceofthewritofhabeascorpus,thenhowcanthisfunctionbegiventothisCommissiononHumanRightswhenthisisessentiallyjudical?Thathumanrightsareveryimportant,thereisnoquestion.Thatviolationsmustbeprevented,detectedand punished, there is also no question. But what is the issue now? Shall we entertain the Maambongamendmentbysubstitution?Ibelieveweshould,becauseifthatshouldbeacceptedbythemajority,thenwecanlimitouramendmentstothesubstitutesectionproposedbyCommissionerMaambong.




MR. GARCIA. MadamPresident,maythecommitteerespond.

THE PRESIDENT.CommissionerGarciaisrecognized.

MR. GARCIA.Thankyouverymuch,MadamPresident.BeforeweaddresstheproceduralquestionwhichCommissionerRodrigorequested,Iwouldliketotouchon a very important question which I think is at the very heart of what we are trying to propose- theindependenceofthisCommissiononHumanRights.Iwouldliketorelatetothebodyapersonalexperienceof mine I think is important to understand why this commission should be independent from politicalpressureorcontrol.

When I was working as a researcher for Amnesty International, one of my areas of concern was LatinAmerica. Iheardamission toColombia in1980 I remember the conversation withPresident JulioCesarTurbayAyalaandhe toldmethat inColombia, therewerenopoliticalprisoners.This isaverycommonexperience when one goes to government to investigate human rights. From there, we proceed to theProcuraduriaGeneral to theAttorney-General, to theMinistryofJustice, to theMinistryofDefence,andnormallytheanswerthatonewillgetare:“Therearenopoliticalprisonersinourcountry”;“Tortureisnotcommittedinthiscountry.”Veryoften,wheninternationalcommissionsororganizationsonhumanrightsgotoacountry,themostcredibleorganizationsareindependenthumanrightsbodies.Veryoftentheseareprivateorganizations,manyofwhichareprosecuted,suchasthosewefindinmanycountriesinLatinAmerica. Infact,whatweareproposingisanindependentbodyonhumanrights,whichwouldprovidegovernmentwithcredibilitypreciselybecauseitisindependentofthepresentadministration.Whateveritsaysonthehumanrightssituationwillbecrediblebecauseitisnotsubjecttopressureorcontrolfromthepresentpoliticalleadership.

Secondly. We all know how political fortunes comes and go. Those who are in power yesterday are inoppositiontodayandthosewhoareinpowertodaymaybeintheoppositiontomorrow.Therefore,ifwehaveaCommissiononHumanRightsthatwouldinvestigateandmakesurethattherightsofeachoneisprotected,thenweshallhaveabodythatcouldstanduptoanypower,todefendtherightsofindividualsagainstarrest,unfairtrial,andsoon.Therefore,thiscommissionplaysavitalrole.And,finally,asIrepeatedlymentionedyesterday,thereisnosubstitutefortheformationofconsciousnessofapopulacethatiswilingtostandupanddefendandupholditsbasicrights.Thiscanonlybeincludedthroughacontinuingeducationalprogramregardinghumanrights.

Andsobelievethatthisisnecessary.Iwouldalsoliketorequestthoseofuswhohavemoreexperiencesonhowtomakethismoreeffectivetomakesuggestions.Ifistrue,asitstands,thatitisnotaseffectiveaswewouldwish,thenwewouldliketoacceptamendmentwhichwouldpreciselystrengthenthisoffice,makeitanationwideefforttoensurethathumanrightswillbeprotected.

Thankyouverymuch,MadamPresident.

THE PRESIDENT.Ithinkthatissueisclear.

CommissionerMaambongisrecognized.


MR. MAAMBONG. Madam President, I was about to ask for the suspension of the consideration of mymotionforsubstitution,andinitsplace,toputbeforethebodytheissueonwhetherornottheCommissionon Human Rights be created as an independent body in the Constitution or created by Congress bymandateoftheConstitution.ButIamwonderingifthecommitteeperhapspresentsomeamendmentstotheamendmentbysubstitutionwhichwould,justthesame,resolvethebasicissue.Theotherproponentsbelievethatthebasicissueshouldberesolved:whetherthisbeconstitutionallymandatedtobecreatedbyCongressordirectlycreatedbytheConstitution.

Butiftheproposedreformulationofthecommitteewillsolvetheissue,Ithinkwecansavetimebyusingthatkindofprocedure.

THE PRESIDENT.ButthereareobservationsthathavebeenmadeheretotheeffectthatsomeCommissionersbelievethatthisshouldbeleftonlytoCongressratherthanforanofficetobecreatedintheConstitutionitself.So,Isupposethatistheissuethatweshouldpresentnowtothebody.



THE PRESIDENT.CommissionerMonsodisrecognized.

MR. MONSOD. Whatwewouldliketosuggest,asproposedbyCommissionerDavide,istoputtoavotethefirstparagraphoftheproposalofthecommittee.Wejustwanttomakesomeminorchangeonthat,butwhatwewanttoputtoavoteisthisissuenow.

THE PRESIDENT. TheproposedamendmentofCommissionerMaambongispendingbeforethebody.

MR. MONSOD.Yes,thiswillbebywayofanamendmentbysubstitutionoftheCommissioner’sproposal,butitwilldealwiththesameissue.

Whatwewould like topropose toavote is theparagraphwhich readsas follows:“THERESHALLBEANINDEPENDENTOFFICECALLEDTHECOMMISSIONONHUMANRIGHTSCOMPOSEDOFACHAIRMANANDTWOCOMMISSIONERSWHOSHALLBENATURALBORNCITIZENSOFTHEPHILIPPINES,MEMBERSOFTHEBAR,ANDWITHSUCHOTHERQUALIFICATIONSANDDISQUALIFICATIONSASMAYBEPROVIDEDBYLAW.”

Thatistheonlyparagraphthatwewouldlikethebodytovoteon.TheunderstandingisthatthisofficewillnotbeinthesamestatusorinthesamecategoryastheotherconstitutionalcommissionsliketheCOA,theCOMELECandtheCivilService.

Secondly, the word “INDEPENDENT” does not preclude amendments that may be proposed by theCommissionerRodrigotoresolvetheissuesthathehasraisedearlierontheneedforcooperationandatthesametime,thatthereisaneedforsomeindependence.


So,thatistheunderstandingbehindthis,butwewouldliketoaskthebodytovoteonthisfirstparagraphwhichalsoresolvestheissueimplicitintheMaambongamendment.

THE PRESIDENT.WhatdoesCommissionerMaambongsaysinceheistheproponentofthisamendment?

MR. MAAMBONG. The parliamentary situation is that we have proposed an amendment which is nowbeforethecommittee,andtheformulationofthecommitteeissupposedtobeanamendmentwhichweproposed.

THE PRESIDENT.DoesCommissionerMaambongaccepttheamendment?

MS. NIEVA.MayIberecognized,MadamPresident?MayIaskforfurtherclarificationoftheproposalasreadbyCommissionerMonsod?

THE PRESIDENT. WewillfirstrequestCommissionerMaambongtomakeareply.

MR. MAAMBONG. MadamPresident,aslongasitwillresolveonceandforalltheissueinthemindoftheproponent,weaccept;that iswhetherthisCommissiononHumanRightswillbedirectlycreatedbytheConstitutionorbyCongressthroughthemandateoftheConstitution.

Inordertoresolvetotheissue,wearewillingtoacceptthatamendmenttotheamendment.

MR. MONSOD. MadamPresident,theissuewillberesolvedbecauseifthebodyvotesforthisfirstparagraph,thenitbecomesaconstitutionaloffice,althoughitwillstillneedanimplantingactoftheCongress.

MR. MAAMBONG.Inotherwords,ifthebodywillnotvoteinfavorofthatamendmenttotheamendment,it means that the body does not want the Commission on Human Rights to be created directly by theConstitutionbutinsteaditwouldwantittobecreatedbyCongressthroughthemandateoftheConstitution,isthatit?

MR. MONSOD.Thatistheimplication.

THE PRESIDENT.Whydowenotposethissimplerquestiontothebody?DoesthebodydesiretohaveaCommissionoraCommitteeonHumanRightscreatedbyCongressbutmandatedbytheConstitutionorforCongresstocreatesuchabody?

MR. MAAMBONG.Asamatteroffact,MadamPresident,thatwasouroriginalformulation.

THE PRESIDENT. Ithinkthatissimpler.Thosewhowillvoteyeswouldmeanthattheyareinfavorthatthisshouldbelefttocongressionalaction.

MR. MAAMBONG.Thatwouldbemoredirectandwouldfavorthat,MadamPresident.

THE PRESIDENT.DoesCommissionerNievahaveanyquestionsoastoguideherinhervote?

MS. NIEVA.Afterwehavevotedonthis,becausemyquestionisonthequalificationofthemembers.

THE PRESIDENT.Yes,wewilltakethatuplater.


MR. NATIVIDAD. MadamPresident.



MR. NATIVIDAD. Just one clarificatory question. If we vote on the proposal making it a constitutionallymandatedofficetobecreatedbyCongress,wewillbeablealsotopresentamendmentstostrengthenthatoffice?

MR. MAAMBONG. Definitely,madamPresident,wecanstilldothat.

MR. NATIVIDAD. So,itwillnotpreventusbecausewehavetheimpressionthatitwilljustbecomeasectionintheGeneralProvisions.

MR. MAAMBONG.Theothermembersofthecommissionwillnotbeprecludedtodothat.Thatwouldbeuptothecommitteeactuallybecausethatwouldconstituteanamendmentwhichisonlyonesection.

MR. NATIVIDAD.Weintendtopresentamendmentstofurtherstrengthenthatbody.Inthatcase,weareclarified.


MR. MAAMBONG. Yes,MadamPresident.

MS. ROSARIO BRAID. MadamPresident.

THE PRESIDENT. CommissionerRosarioBraidisrecognized.

MS. ROSARIO BRAID. Ihavesimilarproblem.IthinktheissuehereisthatifwevotefortheCommissionerMaambong’samendment,weshouldensurethatwehaveanappropriateframeworkwithinwhichCongresscanactratherthanleavingittotheCongresstosetthatoffice.Sothatifwevoteotherwise,itmeansthatwecanproceedtotighteningandstrengtheningtheframeworkwithinwhichanofficecanoperate.Ithinkthis is also in support of the amendment of Commissioner Natividad, although I would like to proposesubsequentsectionsthatwoulddefinethefunctionsandscopeofthistypeofcommission.

MR. MAAMBONG.Inthatcase,MadamPresident,IwillanswerthesamewayasIhaveansweredCommissionerNatividad.TheCommissionerisnotprecludedtoproposeadditionalprovisionsbutthesewillbesubjectagaintotheacceptanceofthecommittee.


THE PRESIDENT. Whatistobedecidediswhichisbetter-tohavethisintheConstitutionorwillitjustbeacreationofCongress?




MR. FOZ.MadamPresident, justforaclarification. IfwearegoingtomandateCongresstoestablishthisofficeonhumanrightsandprovideaframeworkforsuchabodyastothefunction,etcetera,wemightaswell,providerighthereintheConstitutionforsuchabody.Underthelimitationsthatwewouldliketoput,assuggestedbythecommittee,wemightaswelldoitheresothatwecanprovideforalltheamendmentsthatwesothatwecanprovideforalltheamendmentsthatwehaveinmind,suchastheonesbeingproposedbyCommissionerRosarioBraid,Natividadandtheothers.

BISHOP BACANI.MadamPresident.


BISHOP BACANI. MadamPresident,mayIsuggestasacompromisethatwebrieflysaysomethinglikethis:‘THERESHALLBEACOMMISSIONONHUMANRIGHTSWHOSEFUCNTIONS,LIMITATIONSBEDETERMINEDBYLAW.”


THE PRESIDENT. Isthatacceptable?

BISHOP BACANI. With this amendment, we will be creating it and at the same time leave the details toCongress;hence,wewillsatisfythosewhowantthatitbecreatedandatthesametimethosewhoarenotagainstitscreationbutwouldliketoleavethefurtherdetailstothefuturelegislature.So, Iproposethatamendment.


THE PRESIDENT. IsthatacceptabletoCommissionerMaambong?

MR. MAAMBONG.MadamPresident,inordertosavetimeandinaccordancewiththesuggestionoftheChair,IwouldratherthattheissueastowhetherthisCommissionshouldbedirectlycreatedbytheConstitutionorshouldbecreatedbyCongressbymandateoftheConstitutionberesolved.Andforthatpurpose,MadamPresident,tokeeptheparliamentarysituationinorder,Iamnowformallyaskingthecommitteetodeferconsiderationofmyamendmentbysubstitution,andinsteadIamnowpresentingthismotionbeforethebody.ImovethatthecreationoftheCommissiononHumanRightsbebyCongressthroughthemandateoftheConstitution.


THE PRESIDENT.CommissionerRamaisrecognized.



MR. RAMA. I would like to speak against that motion, Madam President. We have forgotten the basicconceptofConstitution.ThebasicconceptandthemostnecessaryprovisionsinaConstitutionpreciselyisthestructureofgovernmentandtheBillofRights.ThereasonforthisisthattheBillofRightsguaranteesthe rights of the citizens against the violations of a ruler.We have to provide certain guarantees to thecitizensagainst theexcessof thegovernment. In thesamemanner,wehave tohaveaCommissiononHumanRightswhichwouldguaranteecertainrightsofthecitizensagainsttheexcessesofthegovernment.ThatisthemostbasicconceptintheConstitution.Therefore,astothequestionsetforthbytheChairastowhetherweshouldbecauseitispartofthebasicandmostfundamentalprincipleofaconstitution.IthinkCommissionerBernaswillagree.Itisjustproperandnecessarybecauseofourexperienceandthetrendintheworldtodaywhereinhumanrightisaconcernofmanyinternationalorganizations.

THE PRESIDENT.Thathasbeenthesubjectofalltheobservationsthathavebeengivenherethismorning.Isthereanybodyelse?

MR. MONSOD. Yes,MadamPresident.

THE PRESIDENT. CommissionerMonsodisrecognized.

MR. MONSOD.MaywerequestavoteatthistimewiththeunderstandingthatavoteofyesisavotefortheMaambongamendmentandavotefornoisavoteforthecommittee’sposition.

MR. MAAMBONG. Iwillfurtherclarifythat.

THE PRESIDENT. Pleaserestatethemotion.

MR. DAVIDE. MadamPresident.

THE PRESIDENT.CommissionerDavideisrecognized.

MR. DAVIDE. Parliamentaryinquiry.Doesitmeanthatwhateverwouldbethevotewouldnotprecludethepresentationofsubsequentamendments?

THE PRESIDENT. Ithinkthatisunderstood.

MR. DAVIDE. Thankyou.

THE PRESIDENT.Thathasbeenclarified.

MR. MAAMBONG.MayIrestatethemotion?

THE PRESIDENT. Pleaserestatethemotionnow.

MR. MAAMBONG. ImovethattheCommissiononhumanRightsbecreatedbyCongressbymandateoftheConstitutionandnottobecreateddirectlybytheConstitution.AndIwouldliketoclarifythismotionby


sayingthatthosewhoareinfavorofthismotionwillactuallybesayingthattheywouldlikethisCommissiononHumanRightstobecreatedbyCongressuponmandateoftheConstitution.

THE PRESIDENT.CommissionerConcepcionisrecognized.

MR. CONCEPCION.MadamPresident, Idonotagreewiththealternative. IthinkweshouldvoteonlyonthequestionofwhetherornottheCommissiononHumanRightsshallbecreatedeitherasrecommendedbythecommitteeortheamendmentofMr.Maambong.Buttheconsequenceofthevotingisadifferentthing.Anegativevoteonthisquestiondoesnotmeanthatitisanaffirmativevoteontheotheralternativessuggested.WevoteonwhatevertheCommissionwantstosettle.Wevoteyesorno.Ifthevoteisnegative,weshoulddiscusstheotheralternative.

THE PRESIDENT.ButwhatisbeforeusnowistheproposalorthemotionofCommissionerMaambongtotheeffect,inbrief,thatitshouldbecreatedbyCongress.

MR. CONCEPCION.WhatIobjecttoisthatavotewhichisadversetothepointvotedon,willconstituteanaffirmativevoteforsomeotherpoint.

MR. MAAMBONG. Madam President, I accept the amendment. And so the motion would be that theCommissiononHumanRightsshouldbecreatedbyCongressunderthemandateoftheConstitution.

BISHOP BACANI.MayIjustaskCommissionerMaambongonequestion.

SincethereisnodoubtintheCommissioner’smindthatsuchabodyshouldanywaybeestablished,IjustliketoaskwhetherornottheCommissionerwantsthisConstitutionalCommissiontohavethehonorofestablishingthatbody,becausethereisnodoubtwhatsoeverinhismindthathewantsittobemandatedbythisConstitution,thatsuchabodyshouldbeestablishedbyCongress.Andso,wouldhenotratherhavethehonortodothathere?ThatiswhyIproposedthatamendment.Wecanleavethefurtherdeterminationofthemembership,functionsandlimitationsofthiscommissiontotheenablinglaw.

MR. MAAMBONG.TheGentlemaniscorrectinthatIaminfavorofthecreationoftheCommissiononHumanRights,butinthisConstitutionalCommissionwehaveactuallytwooptions;eitherwecreateitdirectlyintheConstitutionitselforwemandateCongresstocreateitforus.AndthatispreciselythepointproposedbytheChairtowhichweagree.


THE PRESIDENT.Whichisnowbeforethebody;thatisclear.

BISHOP BACANI.ThatiswhyIamaskingtheCommissionerwhetherornothewantsthehonorofhavingitactuallyestablished.

VOTING

THE PRESIDENT.CommissionerMaambonghasalreadyansweredthatinthenegative.So,thatisclearnowinthemindsofeverybody.


AsmanyasareinfavorofthemotionofCommissionerMaambong,pleaseraisetheirhand.(Few Members raised their hand.)

Asmanyasareagainst,pleaseraisetheirhand.(Several Members raised their hand.)

Theresultsshowthat11votesinfavorand22votesagainst;theMaambongmotionislost.

Letusgobacktothecommitteereport.

MR. RAMA.MadamPresident,CommissionerRosarioBraidhasregisteredahead.


MS. ROSARIO BRAID.MadamPresident.



MR. MAAMBONG. In view of the result of the voting, I am now formally withdrawing my motion for asubstitution.

Thankyou.

THE PRESIDENT. Thankyou.DoesCommissionerRosarioBraidhaveanamendment?

MS. ROSARIO BRAID. MadamPresident,mayIsuggestanamendmenttoSection1,betweenlines9and11.itshouldstatethisway:“ThereshallbeanindependentCommissiononHumanRightscomposedofaChairmanandtwoCommissioners,whoshallbenatural-borncitizensofthePhilippines.THECHAIRMANAND ONE MEMBER SHOULD BE MEMBERS OF THE BAR FOR AT LEAST TEN YEARS, THE THIRD MEMBERSHOULDREPRESENTANOTHERSECTORSUCHASEDUCATIONOROTHERDEVELOPMENTAREAS.”

Thisismysubstituteamendmentwhichcouldberephrasedlater,butthisistheessence.

BISHOP BACANI. MadamPresident,mayIhaveananterioramendment.

MR. SARMIENTO.MadamPresident.

THE PRESIDENT. CommissionerSarmientoisrecognized.

MR. SARMIENTO. MadamPresident,maywerequesttheproponentstoapproachthetablesothatwewillconsideralltheamendments.So,wewillaskforasuspension,MadamPresident.

THE PRESIDENT. Thesessionissuspendedforafewminutes.

SUSPENSIONOFSESSION


It was 11:32 a.m.

RESUMPTIONOFSESSION

At11:51a.m.,thesessionwasresumed.




MR. RAMA. MayIaskthatCommissionerSarmientoberecognized.

THE PRESIDENT.CommissionerSarmientoisrecognized.

MR. SARMIENTO.MadamPresident,mayweaskCommissionerBernastositwithusasweentertaintheamendmentsfromourcolleagues.

Thankyou.



MR. MONSOD. Wewouldnowliketoproposethatwegobyparagraphandthecommitteewouldliketoaskthebodyfortheapprovalofthefirstparagraphwhichwillonlystatetheprinciple:“THERESHALLBEANINDEPENDENTOFFICECALLEDTHECOMMISSIONONHUMANRIGHTS.”Andthenafterthat,wecangotothenextparagraph.

THE PRESIDENT. Is there any objection to this particular first paragraph which has been given byCommissionerMonsod?

MR. RODRIGO. I just want to make of record my belief that an office such as this which is not grantedsufficientpowersofitsown,ifindependentoftheexecutive,willbeapapertiger.


THE PRESIDENT.Pleaserestateitsothatwecantakeavote.

MR. MONSOD. The first paragraph will state: THERE SHALL BE AN INDEPENDENT OFFICE CALLED THECOMMISSIONONHUMANRIGHTS.”

THE PRESIDENT.Asmanyasareinfavorofthisparticularsentenceorparagraph,pleaseraisetheirhand.

BISHOP BACANI.MadamPresident,mayIintroduceanamendmenttothatwhichwillread:‘THEREISHEREBY


CREATEDANOFFICEWHICHSHALLBECALLEDTHECOMMISSIONONHUMANRIGHTS.”

MR. MONSOD.Weaccept,MadamPresident.

VOTING

THE PRESIDENT. Asmanyasareinfavorofthisparticularsentence,asamended,pleaseraisetheirhand.(Severalmembersraisedtheirhand.)

Asmanyasareagainst,pleaseraisetheirhand.(Nomemberraisedhishand.)

Asmanyasareabstaining,pleaseraisetheirhand.(Nomemberraisedhishand.)

Theresultsshow33votesinfavor,novoteagainstandoneabstention;thefirstparagraphisapproved.

FR. BERNAS.MadamPresident.

THE PRESIDENT. CommissionerBernasisrecognized.

FR. BERNAS. Before considering the composition and qualifications of this commission, the committeewouldliketoconsiderthefunctionsfirst.AndIthinktheideaofthecommitteeistoputdownsomeminimumfunctions with an opening for Congress to expand the functions. And for that purpose, the committeewould like to begin consideration on the basis of Section 2, before we go back to the composition andqualifications.

THE PRESIDENT. Howwillitread?

MR. MONSOD.MadamPresident,IbelieveCommissionerOplehasaproposalinthatregard.

MR. OPLE. MayIberecognized?

THE PRESIDENT. CommissionerOpleisrecognized.

MR. OPLE. Thank you, Madam President. I would like to propose an amendment to subparagraph 1 ofSection2,line22,intheformofanadditionalclausefollowingthephrase“privateparties.”

MayIreadthewholeparagraph,asproposedtobeamended:“Investigateallformsofhumanrightsviolationscommittedbypublicofficers,civilianandmilitaryauthorities,orbyprivatepartiesINCLUDINGTHOSEWHOMAYBEENGAGEDINACTSOFREBELLIONORINSURRECTION.”Andifthecommitteewillkindlyallowme,Iwouldliketostateverybrieflythereasonforthisamendment.

TheArmedForcesofthePhilippines, through itsChiefofStaff,GeneralFidelRamos,hastimeandagainexpressedstrongreservationsconcerningahumanrightspolicythatshutsitselftoviolationscommittedbyforcesadversaryorhostiletotheState.Theysaytheremustbenoareaofviolationsthatshouldbeclosedtohumanrightsinquiry,includingthoseatrocitiesthatmaybeperpetratedbyrebelorinsurrectionaryforces.

The military, of course, is understandably the most exposed and the most vulnerable to human rightsinvestigations in the nature of the task they have to do. But where even the conceptual application of


humanrightsstandardstotheiradversaryforcesisdeniedfromthestart,asthoughthiswereasacrosanctandimpenetrableareaofconcern,theeffectishighlydemoralizing.

Therearealreadyreports,MadamPresident,thattheefficiencyoftheAFPmightbeimpairedwheretheyhavetoexistinfearofprosecutionforhumanrightsviolationswhiletheiradversariesareexemptfromsuchinquiryandimmunetosuchrisks.

Thisamendment,therefore,entersthecautionthatthe“privateparties”designatedhereinthissubparagraphwhomaybeliablewillnotmeanthatifviolationsarecommittedbyforcesadversarytotheState,theyareexempted from responsibility as“private parties”.This will ease a great burden on the minds of soldiersdefendingtheRepublic, that thehumanrightspolicyof theConstitution isdiscriminatoryandunfair tothem,whilecreatingazoneofimmunityforothers,andwillalsoputundisciplinedforcesoutsidethemilitaryonnoticethatthearmofthelawinthePhilippineswithrespecttohumanrightsviolationsrecognizesnobarriers.

So,Iseekthecommittee’skindconsiderationofthisproposal,MadamPresident.

THE PRESIDENT.Whatdoesthecommitteesay?


THE PRESIDENT.Canwehavethereactionofthecommitteeonthis?

MR. GARCIA.MadamPresident,Iwouldliketomakeafewcomments.



MR. DAVIDE. IamseekingtointroduceamendmenttotheOpleamendment,butIbelievethatthecommitteewouldstillreact.

MR. GARCIA. WouldtheCommissionerwouldliketospeakfirst?

THE PRESIDENT.CommissionerDavideisproposinganamendment;theGentlemanmayproceed.

MR. GARCIA. IwouldliketoreacttotheproposedamendmentofCommissionerOple.

This debate about the scope of the Human rights Commission has been a long one. In fact, if one hasfollowedthediscussionsbetweenthearmedforcesandthepresentCommitteeonHumanRights,Ithinktheconclusionofthecommitteeisratherclear.Infactourcommitteeisalsodividedonthispoint.Perhaps,thebodyshouldresolvethis.Allcrimesareviolationsofhumanrightsinmanyways.ButthepreciseideaoftheCommitteeonHumanRightsisthatwehavetotrytoinvestigatethoseviolationsofpoliticalandcivilrightswhereremediesarenorfeasible,wherethevictimsdonothavereadyaccesstolegalremedy.Andso,ifweincludeinthescopeofthiscommittee,crimescommittedbylawlesselements,outlawsorinsurgents,wewill thenbeduplicating the functionsofordinarycourts andfiscals because all crimes, for example,


kidnappingandmurder,arepunishableby thecourtsandthesecanbeprosecutedbyfiscals.Secondly,even if we put this under the scope of the existing Human Rights Committee, we will find it extremelydifficult,ifnotimpossible,toactuallyprosecutebecausetheyarenotrecognizedaslegitimateforces.Forexample,intheUniversalDeclarationofHumanRightsortheInternationalCovenantonCivilandPoliticalRights,thesignatoriesarestatesignatories.Infact,theentitythatissupposedtomakesurethattherightsofthecitizensarerespectedistheState,andtheyhavealltheforcesoflawandthearmedforcestomakesurethattheserightsofallthecitizensarerespected.Andifthereareviolations,theyarepreciselysupposedtogoafterthosewhohavecommittedthecrimes.Therefore,wehaveanexistingsystemofjustice-ordinarycourtsandfiscals-toprosecutethesecrimes,butHumanRightsCommissionhasaveryprecisepurpose.Thosewhodonothavereadyaccesstojusticenorreadyaccesstolegalremedyaresupposedtobehelpedbythiscommission.

MR. OPLE. MadamPresident.

MR. DE CASTRO.MadamPresident.

MR. OPLE. MayIreplybrieflytothepointsmadebyCommissionerGarcia.IthinkthisCommissionGarcia.IthinkthisCommissionisrightincreatinganindependentofficetobeknownastheCommissiononHumanRights,firstofall,becausethisproclaimsanationalcommitmentnotonlytopunishviolationsofhumanrightsbutalsotodetertheviolationsofhumanrightsnomatterwhocommittedthem.Itistruethatwhen,letussay,rebelforcescommitanatrocity,probablythesecrimeswouldcorrespondtocertainviolationsofthePenalCodeorthecriminallaw.Butwhydowehesitatetoputuponsuchcrimes-obviously,politicalcrimes-thestigmaandthemoraldeterrentofthedesignationofsuchcrimesasalsohumanrightsviolations?Secondly,wearenotsayingthattheviolatorofhumanrightsonthepartofsuchforceswillbeimmediatelyaccessible.Membersofthemilitarywill,ofcourse,bemoreaccessiblebutcertainlythemoralforceofthisdeterrenteffectofacknowledgingastigmaofhumanrightsviolationsalsoonthoseatrocitiesperpetratedbywhatIcalladversaryforcesorthosehostiletotheState.Wearenotsayingthattheywillbeimmediatelybroughttothefiscalsandthecourts.Thetimesmaynotyetbepropitiousforthatbutfactscanbegathered;witnesses, if theydare tocomeforward,canbeencouragedso that there isa recordof thisviolationofhumanrightsintheHumanRightsCommission.AndtheHumanRightsCommissionmaythenmaketheappropriaterecommendations.

Madam President, I also recognize that rebel forces are not signatories to the International ConventionofCivilandPoliticalRights;neitheraretheysignatoriestoanyinternationaltreatywhichhastheforceoflawinourowncountry.ButthePhilippineStateisnotprohibitedtherebyfromexercisingitsjurisdictionandenforcingthe lawandasymmetryof justice that recognizesnobarriers,whether thesebarriersareideologicalormilitaryinthecharacteratthistime.And,therefore,Ithink,intheinterestofconstitutionalsymmetry,justiceandsecurity,Iwouldliketosubmitthatthisisaveryproperandnecessaryamendment.

MR. DE CASTRO. MadamPresident.


MR. DE CASTRO. Maytheproponentagreetoanamendmenttohisamendment?

MR. OPLE. MayIrespectfullylistentotheproposeamendment.

MR. DE CASTRO. Iwillsay:“INVESTIGATEALLFORMSOFHUMANRIGHTSVIOLATIONSINVOLVINGCIVILAND


POLITICALRIGHTS.”Weshallrefrainfromenumerating“publicofficers”andsoon.This,Ibelieve,willincludeeverybody,evenmembersofthiscommission.

MR. OPLE.Sothatwedonothavetofacethispainfulchoice,MadamPresident.

MR. DE CASTRO. Yes, because the more we enumerate, the more there will be exclusions of certainenumerations.With this amendment, there will be no exceptions, whether they be the military, police,civilianorwhoevertheyare.AsIsaid,itwillincludeeverymemberofthiscommission.


FR. BERNAS. MadamPresident.

THE PRESIDENT.CommissionerBernasisrecognized.

FR. BERNAS. MayIjustmakeanobservationontheamendmentofCommissionerOplebeforewedecideontheamendmenttotheamendment?TheobservationIwouldmakewouldbeatechnicalonewhich,Ithink,inthecontextofexistingjurisprudenceincriminallaw,mightmakethisamendmentofCommissionerOpleself-defeating. Inthepresent jurisprudence incriminal law,whenthere isachargeofrebellion,allotheroffensesareswallowed inthechargeof rebellion.Sothat ifweconnectviolationsofhumanrightswithrebellion,underthepresentjurisprudence,wewillhavetoignorethespecificationsofviolationsofhumanrightsandpayattentiononlytothesinglecrimeofrebellionbecauserebellionabsorbseverythingelse.Whereasifwedonotconnectthiswithrebellion,thenwecangoafterthehumanrightsviolationsoftherebelswithouthavingtotagthemasrebels.Butifweconnecthumanrightsviolationswithrebellion,thenthedefensewouldbe:“Iamchargedwithrebellion”andthatabsorbseverythingelse.

MR. OPLE. MadamPresident,mayIjustcalltheattentionofCommissionerBernastothefactthatrebellionisnotaconditionsinequanonforarebelcommittingaviolationofhumanrights.Wejustraisehimtothelevelofresponsibilityandaccountabilityofeveryothercitizenwhomaycommitsuchviolationsofhumanrights. It is not a necessary condition and it does not even have to provide the essential context to theviolationsofhumanrightscontemplatedinthissubparagraph.

FR. BERNAS. TheproblemIsee,MadamPresident, isthatbytheveryfactthatwementioned“includingthosewhomaybeengagedinactsofrebellion,”weareusing“rebellion”infactasthecontext;andonceweuse“rebellion”asthecontext,thenthecontextcolorseverythingelse.

MR. OPLE. Thename“rebellion”or“insurrection”here, I think,castsaconstitutionalnetso thatviolatorsofhumanrightsamongtheseforces,letussay,engagedinanarmedinsurrectionmayrefernottoactualconditions of combat. An example is what the armed forces do at times wherein perhaps because ofmisplacedordersorlossofcontrolanddiscipline;theymassacresomepeoplewhoareinnocent.Thenthat,Ithink,createsaviolationofhumanrightswhichcanbesegregatedandproceededagainstindependentlyasaviolationofhumanrightsthatthisHumanRightsCommissioncantakecognizanceof.

FR. BERNAS.TheproblemIhaveisthelanguageoftheproposedamendment.

MR. OPLE. Iamwillingtolistentoanamendmenttoimprovethelanguage.


FR. BERNAS. Becausethe languageoftheamendmentsays“INCLUDINGTHOSEWHOMAYBEENGAGEDINACTSOFREBELLION.”So,theGentlemanis, infact,makingtheactsofrebellionasthecontextforthisaddition. If we just take that out, everyone else comes under“private parties.” So, even the rebels comeunder“privateparties”andwedonothavetotaketheactof“rebellion”asthecontextbecausethemomentwedo,thedefensewillcomeupwiththeargumentthattheactof“rebellion”isthecontext.

MR. OPLE.DoesthecommitteesubscribetothisconstructionjustmadebyCommissionerBernas?

MR. DE CASTRO.MadamPresident,Ihaveaproposedamendmenttotheamendment.

THE PRESIDENT. Is the proposed amendment of Commissioner de Castro accepted by CommissionerOple?

MR. OPLE.Yes,MadamPresident.

MR. DE CASTRO.Thiswillexcludeenumerationofpeopleandparties.

MR. OPLE. Myanswerwillprobablydependonthecommittee’scollectiveresponsetothequestionthatIjustputtothem.


THE PRESDIENT.Yes,becauseitaffectstheformulationsmadebythecommittee.

MR. RAMA. MadamPresident,CommissionerAquinowouldliketoberecognized.

MS. AQUINO. Madam President, I would just like to volunteer some observations on the proposal ofCommissioner Ople. I am apprehensive that the proposed amendment has a very myopic focus on theproblem of human rights. In fact, I think the emphasis is a bit askew.When we speak of human rights,wespeakofanimproperbalanceofpowerbetweenthemassesandtheStatesuchthattraditionallyandhistorically,humanrightsarebestappreciatedinthecontextofstateandinstitutionalviolencewherethemasseslaydestituteandpowerless.Eveninthecontextofcotemporarypoliticaltheory,theyareknowntohavesurrenderedacertainmeasureoftheirpersonalliabilitiesinfavoroftheStateifonlytoyieldtotherequirementsofsocialorderandregulations.

Whenwespeakofstateviolence,wethinkofthepeoplewho,sunderedfromtheseatsofpowerandgaspinginforlornfashionoverfutileideologues,becomereservoirsofhateandbitternesswhenevertheyfeeltheinstitutionalizedstateviolencebeingperpetratedbythepowers-that-be.So,wespeakofhumanrightsinthecontextoftheStatewhichhastheunchallengedmonopolyofthelegaluseofforce.Thisisthekindofimbalancethatissoughttobecorrectedbyahumanrightscommissionwhichisbeingproposedbythecommittee.



THE PRESIDENT.IsCommissionerOpleinsistingonhisamendmentaftertheexplanation?

MR. OPLE.Iamwaitingfortheresponseofthecommittee,butinthemeantime,willtheChairallowmetoreplybrieflytoCommissionerAquino’spoints?

THE PRESIDENT.Pleaseproceed.

MR. OPLE. Yes,thereisnoquestionthatwhenwespeakofhumanrights,themainconcernisthatofanoverpoweringand,perhaps,overbearingStateviolating,throughanyofitsinstrumentalities,thepoliticalandcivilrightsofpresumablyhelplesscitizens.Thereisnoquestionaboutthat,andIwouldliketosaythatthe reason that I think providing for an independent office to be known as the Commission on HumanRightsisanexcellentdecisionisthatthisall-powerfulandoverbearingStatemustbecounteredandbeputunderreinsthroughmainlythemoralandlegalforceofanationexemplifiedintheCommissiononHumanRights.

ButImerelyputittotheCommissiontounderstandthatthearmedforcessaysthatabout17percentofallthevillagesinthiscountryhavenowcomeundertheinfluence,ifnotcontrol,ofinsurrectionaryforces,andwhetherwebelievethemornot,thereportsarethereshowingthatsomeofourbrothersengagedinthisarmedstruggleagainsttheStatecommittingtheirownexcesses.Andrecently,anNPAcommanderinCagayandeOroCityandMisamisOrientaldidpubliclyapologizeandofferreparationtosomecivilianswholosttheirlivesprobablybecauseofafailureofcontrolindiscipline.

Ifwedonotmakeanattempttosatisfythesenseoflopsidedjusticeintermsofhumanrights,knowingthehurtssufferedbysomeofourownsoldiersnow,thentheresultisdemoralizationandsincethecommittee,inmypreviousconsultationswiththem,candidlyadmitstheprivatepartiescoverviolationsofhumanrightsalsobytheseinimicalforces,whatIwantedtofindoutwasthereasonforhesitatingtomakethisexplicit.

IhavelistenedtoCommissionerBernasandIthinkhispointisvalid,butIamwaitingforthecommitteetorespond.

MR. FOZ. MadamPresident.


MR. FOZ.ThecommitteewouldliketosaythatitpreferstheamendmentpresentedbyCommissionerdeCastrobecauseitgivesmuchleeway;itisall-embracing,andCongresswillreallyhavethechancetospecifywhatwillbethescopeofthejurisdictionofthepoweroftheproposedCommissiononHumanRights.

MR. DE CASTRO.Thankyou.

MR. OPLE.MadamPresident,IwaslookingforasymmetryandCommissionerdeCastrohasnowproposedakindofsymmetrybythedeletionoftheenumerationofvariousparties,publicorprivate,thatwillfallwithinthescopeoftheinvestigationofhumanrightsviolations.Nevertheless,byeliminatingthisenumerationof“publicofficers,civilianandmilitaryauthoritiesorbyprivateparties,”ifitisunderstoodthatthepurviewoftheCommissiononHumanRightsextendstoallcitizenswhoevertheymaybeandwhateverpursuitsthey


maybeengagedin,thenIwillbewillingtoyieldtotheamendmentofCommissionerdeCastro.

MR. SARMIENTO.MadamPresident,thosearenotexcluded,but,asCommissionerFozsaid,wewillleaveittoCongress.



MR. OPLE. But the principle of universal application of the human rights policy is not denied by thecommittee.


THE PRESIDENT.CommissionerdelosReyesisrecognized.

MR. DE LOS REYES. MadamPresident,IwouldjustliketocommentonthestatementofCommissionerBernaswhenwespeakofrebellion,othercrimesareswallowed.Perhaps,whathemeantwasthatallothercrimesareabsorbed.Itistruethatthereisnosuchthingasacomplexcrimeoftherebellionwithmurderorrebellionwitharsonand, in thatsense,othercrimesareabsorbed.But thesecrimescommitted independentlyorrebellionamountingtotorture,arecertainlynotabsorbedbyrebellionbutareindependentcrimeswhichcanbeprosecutedindependently.

AndIthinkthereshouldbeabalanceintheinvestigationbytheproposedHumanRightsCommission.Doonposaamin,angmgaNPAaykinuhaangisangPCnanabalitaanlamangnilangnang-aabuso.Atsaharapngkanyangpamilya,pinahirapanatpinatay.Iyanpobaaybahagipangrebellion?Sapalagaykoayabusonaiyan.Thatisalreadyahumanrightsviolation.

Isang pulis ang nagkakagusto sa isang babae, subali’t nang hindi sila magkasundo, inihabla ng rape ngbabaeiyongpulis.IyongkapatidngbabaenasumamasaNPAaykinuhaangpulisatpinutoliyongkanyang“organ.”Isthatstillpartofrebellionthatcanbeswallowedorabsorbedbyrebellion?Thatishumanrightsviolation.

Butthe importantthing isthatwhenthisHumanRightsCommission investigatecases, itwillpublishalltheabusesofthemilitary,therebypresentingaverybadimageofthemilitary.ButifweplacetheretheamendmentofCommissionerOple,statingthatthiswillincludeviolationsbypeoplewhoareengagedinactsofrebellion,thentherewillbeabalancedinvestigationandreportingandpeoplewillseenotonlytheabusesofthemilitarybutalsotheabusesofthesepeoplewhoseektooverthrowourgovernment.




MR. RAMA.MadamPresident,mayIaskthatCommissionerConcepcionberecognized.

THE PRESIDENT.CommissionerConcepcionisrecognized.

MR. CONCEPCION. Thankyou,MadamPresident.

Tostartwith,Iwouldliketoproposeanamendmenttotheamendmentandthatissimplytoaddthewords“PIVATEPARTIESWITHOUTDISTINCTION”andIwillexplain,iftheChairwillpermitme.

AsIunderstand,it,theCommissiononHumanRightsisnotinchargeofprosecutingviolationsthereof.Itshouldbemoreinterestedindeterminingwhereandwhyhumanrightsareviolatedandrecommendingmeasurestoforestallsuchviolations.

Ihopethat theCommissiononHumanRightswouldundertakestudiesandprovidestatistics therefore.As regards violations committed by the military or the civilians, the prosecution of violations and theirpunishments is the functionof theprosecutorsandordinarymore importantpublicservicebydevisingmeansandwaystopreventorminimizeviolationsregardlessofwhotheviolatorsare.

Thankyou.


THE PRESIDENT.DoesCommissionerRegaladostillwanttosaysomething?

MR. REGALADO. I justwanttosupportthestatementofCommissionerde losReyesthattheuseof theword”rebellion”hereabsorbsallothercrimesthatmayhavebeencommittedbytherebelsontheoccasionthereof.ThatwastheoldcaseofPeoplevs.Hernandezapplyingthedoctrineofproreoandwhich,asamatteroffact,waspennedbyJusticeConcepcion.ButsubsequentlyinthecasesofPeoplevs.GeronimoandPeoplevs.Taruc,itwasclearlystatedthatanyotheroffensescommittedbytheseadversaryforcesareontheoccasionofactsofrebellion.Ofcourse,Itakeissueherewiththewordused,“ofrebellionorinsurrection,”whichafterallmeanthesame.ButifthepurposeofCommissionerOpleisreallytounderscorethisconcernwhichhasbeenarticulatedevenbytheChiefofStaff,GeneralRamos,inthematterofhiscommentonthePresidentialCommitteeonHumanRightswhichseekstoinvestigatesoldiersbutnottherebels,andifhewillreallyinsistonthisanditisacceptabletothecommittee,thenwecanjuststatethere“CRIMESAGAINSTPUBLICORDER,”whichwouldinvolverebellion,sedition,tumultuousdisturbancesandnotonlyrebellionperse.

MR .CONCEPCION.MadamPresident.

MR. REGALADO. Althoughallothercrimescommittedinconnectiontherewithorontheoccasionthereofarealwaysseparatelypunishable,thedoctrineofproreodoesnotapplythere.




THE PRESIDENT.LetusfirsthearCommissionerConcepcionwhodesirestoexplain.

MR. CONCEPCION. I would simply make this observation. The more we specify the offenses that areincluded,themorewelimitthefunctionoftheCommissiononHumanRightsunderthetheorythatwhenaspecification ismade,all thosenotspecifiedareexcluded.So itwouldbebetternot tomentionwhatparticular crimes are intended or what we have in mind.We simply leave it to the commission becausetheirfunctionisbroadenough,particularlyifweaddthephrase“ALLPARTIESWITHOUTDISTINCTION”oraphraseofasimilarnature.Sowewouldbroadenratherthanlimittheambitofourintendmentwiththephrase“thosecommittedinconnectionwith”orasameansnecessaryforthecommissionofthecrimeofthisorthat.Thiswouldexcludeallothercrimesoroffenses.



FR. BERNAS. Thatispreciselythereasonwhywewouldliketoavoidanymentionofanycrimesothatwedonothavetogothroughanytroubleoftryingtodeterminewhetherornottheviolationofhumanrightswasdoneinfurtheranceofrebellion.Sowewouldlikethefocustobeontheviolationsofhumanrights.ItisforthatreasonthatwethinktheproposalofCommissionerdeCastrogivesusthatproperfocus.Thefocusisnotsomuchonanyparticularcrimeorcrimeingeneralbutontheviolationsofhumanrights.

THE PRESIDENT.IthinkthatisacceptabletoCommissionerOple.

MR. OPLE. Madam President, the response of the committee to my question as to the purview or thescopeofhumanrightsviolationswithinthejurisdictionoftheCommissiononHumanRightshasnotbeenverysatisfactory.Ithinkthereisatendencytoevadetheissueofwhetherornothumanrightsviolationscommitted by forces inimical to the State are encompassed within the purview of the Commission onHumanRightsbytheterm“privateparties.”

FR. BERNAS.Ithinkthecommitteeisclearthatiscoveredbytheterm“privateparties.”Whatwearetryingtoavoidpreciselyisanylanguagethatwouldtendtoconnectittoanyspecificcrimeespeciallyifweconnectitwithrebellionbecausewemayhavetogothroughthetroubleofdeterminingwhetheritwasdoneinfurtheranceof,orindependentlyof,rebellion.But,certainly,“privateparties”wouldcovertherebelssincetheyarenotpublicofficers;theyarenotcivilianormilitaryauthorities.And,again,itisforthatreasonthatIthinktheamendmentofCommissionerdeCastroispreferablebecausethefocusisontheviolationandnotontheviolator.

MR. OPLE.MayIhearthefinalofficialpositionofthecommitteethroughthechairmanofthecommittee.Isthisconstructionsupported?

THE PRESIDENT. Thatis,whethertheterm“privateparties”includerebels,insurgents…

MR. OPLE.Yes,preciselythepointjustmadebyCommissionerBernas.


MR. SARMIENTO. Madam President, the committee is divided on this issue, so may we hear the side ofCommissionerGarcia.

MS. NIEVA.CanIjustaskforaclarification,MadamPresident?

Yesterday, I asked the question:What did“private parties” include? And it was made clear to me that itincludedallsides-leftists,rightists,centrists,rebels,sectsandanyprivategroups.So,Iamnowalittlebitperturbedbecauseitisintheminutes,andthatwasclarifiestomebyCommissionerSarmiento.

MR. SARMIENTO.Yes,MadamPresident.ThatwasmyreplytothequerymadebyCommissionerNieva,butCommissionerGarciawouldliketomakehisobservationsionthisissue.

MR. GARCIA. MadamPresident,Iwouldliketoclarify.WhatCommissionerNievaobservediscorrect.Thecommitteereport,infact,says“allparties”whichincludesdifferentgroups.WhatIhavetriedtopresentthismorningispreciselythelongdebateontheissueofhumanrightsbeingfollowedbytheexistingPresidentialCommitteeonHumanRightscreatedbythepresentgovernment. Inotherwords,theyhavethemselvesdiscussedthisissueandtheconclusionispreciselythatallcrimes,inonewayoranother,areviolationsofhumanrights,punishablebycourtsandprosecutedbyfiscals.Ifwearegoingtosuggestthatcrimesbyallthesegroupsaregoingtosuggestthatcrimesbyallthesegroupsaregoingtobecommitted,thecommitteewillbeconstrainedtopursuesomanyofthesedifferentcrimes,ratherthangotoitsessentialtaskwhichistogoaftercrimeswherevictimsdonothavereadyaccesstolegalremedy.FollowingthephilosophyenunciatedbyCommissionerAquinowherethegovernment,whichhasthemonopolyoflegitimatepower,controlsthelegalsystemandisalsoarmedtopunishcrimes,theycanthuspursuecasesthroughtheordinarycourtsoflaw.Weareadmittingthatthereareviolationsofhumanrightscommittedbyrebelforces,butwhatwearesayingisthatthecommissionwearecreatingispreciselytoenableordinarycitizenstohaveaccessagainstalltheforcesoftheState.So,Iamstatingtheactualpositionofthecommittee.

MR. OPLE.MadamPresident.

MR. GARCIA. Secondly, to give the international context, when I headed the Commission of AmnestyInternationaltoColombia,IremembertheveryfirststatementmadebyPresidentJulioCesarTurbayAyalaofColombiaonJanuary16,1980.Hesaid:

Before you investigate the human rights violations of my government, because there are no politicalprisonersinmycountry,whydon’tyougoafterthecrimescommittedbytheguerillas?

Inotherwords,thatisnormallytheanswerofgovernment.And,therefore,AmnestyInternational’sresponsewas,becausethestatepartiesaresignatoriestothehumanrightscovenantsandinstruments,theyaretheoneswhomustbe responsible forhumanrights tobe respected in theircountries.Andunless theyarewillingtogivelegitimaterecognitiontotherebelforces,thenthecommissioncannotgoafterthem.Whatgovernmentsshoulddoistomakesurethatthesecrimesarepunishedintheordinarycourts.




MR. MONSOD. Maythecommitteerespond?


MR. MONSOD. WithallduerespecttotheopinionofCommissionerGarcia,whoisnotamemberofthecommittee,thepositionofthiscommitteeiswhatisstatedinthereport-thatitwouldincludeoffensesbygovernmentandmilitaryofficialsaswellasofprivateparties.OuracceptanceoftheproposalofCommissionerdeCastroismerelytogiveflexibilitytoCongressandthecommissiontodeterminetheprioritiesoftheirwork;butintermsofthescope,thecommitteereportisveryclear.

MR. OPLE.Ifthatisthecaseandthesponsoringpanelisnotunitedonthispoint,IamconsideringtodeclinetheamendmentofCommissionerdeCastroandtoaskthecommitteewhetheritistheirpleasuretoputmyamendmenttoavote.

BISHOP BACANI. MadamPresident.

THE PRESIDENT. CommissionerBacaniisrecognized.

BISHOP BACANI.Ithinkallthemembersofthecommitteeareunited;CommissionerGarciaisnotamemberofthecommittee.

MR. OPLE. Iamspeakingofthesponsoringpanel,MadamPresident.

BISHOP BACANI. Thatiswhy.Before,Ithoughtthattheywereallmembersofthecommittee.MypointwastoaskthecommitteeevenbeforeanyvotingtakesplacetoshowmanyofthemagreewiththeopinionofCommissionerGarcia,sowewouldreallyknowthesenseofthecommittee.Butitisnowveryclearthatthecommittee’ssenseisreallythesameasitwasyesterday,andCommissionerGarcia,therefore,eventhoughheisamemberofthesponsoringpanel,isnotinaccordwiththecommittee.


THE PRESIDENT. CommissionerFozisrecognized.

MR. FOZ. It isthesenseofthecommitteethatwhenweusetheterm“privateparties,”wereallywanttomakeitclearthatasidefromthosementionedintheenumeration,allotherpartiesmaybeoffendersofviolatorsofhumanrightsand,ofcourse,itissogeneralthatitcoverseventheamendmentofCommissionerOplewhenitsays,‘THOSEWHOAMYBEENGAGEDINACTSOFREBELLIONORINSURRECTIONAGAINSTTHESTATE.”

MR. OPLE.Thankyouverymuch.

MR. FOZ.AndthiswaspreciselyraisedbyCommissionerNievayesterdayduringtheinterpellationsanditwasveryclear.


MR. OPLE.With that categorical reiteration of the definite intent of the committee, I now would like toaccepttheamendmenttomyamendmentbyCommissionerdeCastro.

THE PRESIDENT.SothatwhatwillbesubmittedtothebodyforavoteistheamendmentofCommissionerdeCastro.

MR. RAMA.Thebodyisreadytovote.

MR. DE CASTRO. MadamPresident,may I justhaveawordplease? IamverythankfultothecommitteeandtoCommissionerOpleforacceptingmyamendmenttotheamendment,butIwouldliketoinformthebodythatsincethecreationoftheHumanRightsCommission,themilitaryhasalwaysfeltthatitisalwaysdirectedtothem.WhenIsawJusticeJ.B.LReyesandMadamAvancenaandtheytalkedtomeabouthumanrights,Itoldthemthatthisisprincipallydirectedtowardsthemilitary,andthatmyproblemishowtocreateHumanRightsCommissionandremovefromitsfunctiontheword“military.”Itreallyisdemoralizingtothemilitarywhenwesaythattheyaresubjectsofinvestigationbythecommission.IfoundthismorningtheappropriatewordingstousesoIcaneliminatetheword“military”intheformulationoftheprovisionontheinvestigationofhumanrightsviolations.

Thankyou.



MR. FOZ.WehavepreciselymanifestedthatwehaveacceptedtheamendmentproposedbyCommissionerdeCastro.

THE PRESIDENT.Yes, as formulated, the proposed amendment reads this way:“Investigate all forms ofhumanrightsviolationsINVOLVINGCIVILANDPOLITICALRIGHTS.”Isthatcorrect?

MR. FOZ.Thatiscorrect,MadamPresident.

VOTING

THE PRESIDENT. As many as are in favor of this proposed amendment, please raise their hand. (Several Members raised their hand.)

Asmanyasareagainst,pleaseraisetheirhand.(No Member raised his hand.)

Asmanyasareabstaining,pleaseraisetheirhand. (One Member raised his hand.)

Theresultsshow34votesinfavor,noneagainstand1abstention;theproposedamendmentisapproved.



MR. RAMA.MadamPresident,mayIaskCommissionerNolledoberecognizedforsomeinformation?

THE PRESIDENT. Pleaseproceed.

MR. NOLLEDO. Madam President, I have here in my possession a statement from our separatedbrethren.IwouldliketoreadthelasttwoparagraphswiththekindestindulgenceoftheMembersofthisCommission:

August27,1986

WearerepeatedlytoldthatouractionhasgeneratedbroadandkeeninterestintheworkoftheConstitutionalCommission.Ifratherunintended,wetakethisasasalutaryconsequence.WetrustthatthegeneratedinterestshallremainaliveandsupportiveofourcollectiveeffortsatframingaConstitution.weenjointhepeopletoremainsteadfastintheirwholeheartedparticipationinthewritingofavitalchapterofourhistory.

Withthiscall,wearehappytoannouncethattomorrow,Thursday,weshallbereturningtotheConstitutionalCommissiontocontinueourworkinseekingnewpathwaysforacollectivedevelopmentfullyawarethattheneedsandidealsofthepeopleshallalwaysremainparamount.

(Sgd.)MindaLuzQuesada (Sgd.)JaimeTadeo(Sgd.)PoncianoBennagen (Sgd.)WilfridoVillacorta JoseSuarez


MR. RAMA. Madam president, another information from CommissionerTingson before we suspend thesession.

THE PREISDENT. CommissionerTingsonisrecognized.

MR. TINGSON.MadamPresident,soonaftertheConstitutionalCommissionwasconvened,CommissionerTanandIfiledaresolutionunanimouslyapprovedbythisbodyandimplementedbythePresidentofthePhilippinestogivethepublicfrankingprivileges.CommissionerdivideamendedthesaidresolutionsothatthefrankingprivilegeswouldlastonlyuntilAugust15.But,MadamPresident, Iamhappyto informourcolleaguesthatIreceivedinformationtodaythatthepostofficewillcontinueourfrankingprivilegesuntilourworkhereisover.Thismeansthepeoplecanwritetouswithoutstampsandwealsocandothesamethinguntilourworkisover.


BISHOP BACANI. MadamPresident,IwouldliketocorrectCommissionerTingson.Wecannotexercisethatfrankingprivilegeourselves.

THE PRESIDENT.Wecan.TheexecutiveorderofthePresidentgrantsusthesameprivilege.


BISHOP BACANI.Iamsorry.

SUSPENSIONOFSESSION

MR. RAMA.MadamPresident,Imovethatwesuspendthesessionuntiltwo-thirtythisafternoon.

THE PRESIDENT. Thesessionissuspended.

It was 12:44 p.m.

RESUMPTIONOFSESSION

At 2:56 p.m., the session is resumed.

THE PRESIDENT. Thesessionisresumed.

MR. RAMA.MadamPresident,wearestillintheperiodofamendments.

THE PRESIDENT. Ithereanypendingamendment?

MR. RAMA.MadamPresident,may Iask thatCommissionerDavidebe recognizedontheArticleontheCommissioneronHumanRights?


MR. DAVIDE.Thankyou,MadamPresident.

ThefirstamendmentisonSection2(1),page1,line20.Aftertheword“investigate”,addacomma(,)andthephrase“ONITSOWNORONCOMPLAINTBYANYPARTY”followedbyanothercomma(,).

THE PRESIDENT. Whatdoesthecommitteesay?

MR. FOZ.Mayweasktheproponenttorepeattheamendment?

MR. DAVIDE. OnSection2(1),line20,aftertheword“investigate”,addacomma(,)andthephrase“ONITSOWNORONCOMPALINTBYANYPARTY”followedbyanothercomma(,).

MR. FOZ.Weaccepttheamendment,MadamPresident.

THE PRESIDENT. IsthereanyobjectiontothisproposedamendmentofCommissionerDavidewhichhasbeenacceptedbythecommittee?(Silence)TheChairhearsnone;theamendmentisapproved.



MR. DAVIDE.OnSection2(2),page2,deletethephrase“issuesubpoenaandsubpoenaducestecum”andsubstitute it with the following:“ADOPT ITS OWN RULES OF PROCEDURE, INCLUDINGTHE ISSUANCE OFCOMPULSORYPROCESSES,”sothatthetwolineswillnowread:“ADOPTITSOWNRULESOFPROCEDURE,INCLUDING THE ISSUANCE OF COMPULSORY PROCESSES to compel the attendance any party to itsproceedingorthe…”

MR. FOZ.Whataboutthepowertociteforcontempt?

MR. DAVIDE. Theamendmentisonlyuptothatpartbecausewewillretainthephraseonthepowertociteforcontempt.So, Iwouldproposethefollowingomnibusamendments:First,on line1,substitute“issuesubpoenaandsubpoenaducestecum”withthephrase“ADOPTITSOWNRULESOFPROCEDURE,INCLUDINGTHEISSUANCEOFCOMPULSORYPROCESSES”;online3,insertaftertheword“materials,”acomma(,)andtheword“RECORDS”;online4,deletethephrase“inaccordancewith”;onlines5and6,deleteallthewords.Theentireparagraphwillreadasfollows:“ADOPTITSOWNRULESOFPROCEDURE,INCLUDINGTHEISSUANCEOFCOMPULSORYPROCESSEStocompeltheattendanceofanypartytoitsproceedingsortheproductionofmaterials,RECORDSanddocuments,withthepowertociteforcontemptforviolationsthereof.

MR. NOLLEDO. Madam President, I thought the amendment of Commissioner Davide would cover onlythefirstpageorSection1.Ihaveananterioramendment,copiesofwhichwerealreadydistributedtotheMembersoftheCommission.

My anterior amendment, Madam President, is to add a new Section 2 (2) after line 22 of page 1.This iscoauthoredbyCommissionerTingson,andtakesintoaccounttheobservationsofCommissionerBengzonduring his interpellation in yesterday’s session.The proposed Section 2 (2) will read as follows:“DEFINETHE SCOPE OF HUMAN RIGHTSVIOLATIONSWHICH SHALL FALLWITHIN ITS JURISDICTIONTAKING INTOACCOUNTTHEBILLSOFRIGHTSANDTHEUNIVERSALDECLARATIONOFHUMANRIGHTS.”

Iwouldliketostatehere,MadamPresident,thatformerChiefJusticeConcepcionmadeastatementinthismorning’ssessionthattheCommissiononHumanRightsmaydefinetheextentofitsjurisdiction.Ithinkitshouldbethecommissionthatshouldbegiventhepowertodefineitsjurisdictionbecausethewholegamutofcivilandpolitical rightscoversaverywidefieldand it is thecommission itself thatshouldbeempoweredtoidentifythecasesoverwhichitcanexercisejurisdiction.

MR. FOZ. MadamPresident,wehaveaquestiontoasktheproponent.

IstheCommissioner,ineffect,grantingsomekindoflegislativepowertotheCommissiononHumanRightsbygivingitthepowertodefinethescopeofhumanrightsviolationswhichshallfallunderitsjurisdiction?

MR. NOLLEDO.ItisnotexactlyalegislativepowerbecauseitisimplementingSection2(1)whichprovidesthatthecommissionhasthefunctiontoinvestigateatitsowninstanceorattheinstanceofanypartyallformsofhumanrightsviolations.Theword“allformsofhumanrightsviolations”willconstitutethebasisforthecommissiontodefinetheinstanceofviolationsofhumanrightsoverwhichitcanassumejurisdiction.

MR. BENGZON. MadamPresident.



MR. BENGZON.Iwaspreciselygoingtostandupandtalkaboutlines20to21,andwiththepermissionofCommissionerNolledo,Iwouldbesatisfiedwiththereadingontotherecordwhatwereallymeanbyhumanrightsviolations.Thewaythingsstandnow,themeaningisbroad.Iwantedtohaveasharperfocusonwhatthesehumanrightsviolationsaresothattherewillnotbeanyconfusionlateronwhenacasearisesandseveralagenciesofthegovernmentmightwishtohavejurisdiction.Forthatreason,Iwouldbesatisfiedwith a question addressed to the committee and with an answer to the effect that these human rightsviolationsconsistoftherightsasarticulatedbyusintheBillofRightsandintheCivilandPoliticalRightsintheUnitedNations.

IfweenterthoseintheJournal,thentome,itismorethansufficientfocusingofwhatwemeanby“humanrightsviolation.”And,therefore,thereisnoneedanylongerfortheproposedamendmentofCommissionerNolledo.IhopethatCommissionerNolledosharesthatview.

MR. NOLLEDO. MadamPresident,IdonotsharetheviewofCommissionerBengzon-withduerespecttohim-becausetheHumanRightsCommissionisexpectedtopromulgateitsownrulesofprocedure,includingrulesthataredirectlyconnectedwithprocedure,andoneoftheseistosetforththeinstancesoverwhichthecommissionhasjurisdiction.Whileitistruethatenteringintherecordstheinstancesoverwhichthecommissionhasjurisdictionwouldseemtosuffice,Ithinkthereisnoneedoffurtherresearchonthepartofpersonswhowouldliketotakeadvantageofthebenefitsaffordedbytheexistenceofthiscommissionwhenthecommissionitselfsopromulgatestheinstancesthatshallfallunderitsjurisdiction.

MR. BENGZON. But, Madam President, I think it goes without saying that this commission would havethat right without our really specifying it. Assuming that the amendment is approved, I was wonderingifCommissionerNolledowouldbewillingtosubstitutethephrase“THECONVENTIONOFTHECIVILANDPOLITICALRIGHTSINTHEUNITEDDECLARATIONOFHUMANRIGHTS”whichisbroad.


MR. NOLLEDO.Iagree.



MR. MONSOD. Madam President, what we had in mind was to enumerate some basic functions of thecommission, with the last subsection providing that Congress shall define the initial functions of thecommission as well as those functions granted to it over time. Our idea, Madam President, is for thecommissiontohavemoremodestobjectivesduringitsinitialyears,aswehadmentionedearlier,andthenthesecanbeexpandedtogoevenbeyondthecivilandpolitical rightsasthe levelofourdevelopmentincreasesandtherewillbechangesinthetypesofhumanrightsviolationsexistinginthecountry.So,ifitisallrightwithbothCommissionersNolledoandBengzon,wecanputthisasacatchallphraseattheendoftheenumerationandtogiveenoughleewayforcongresstoexpandthefunctionsoftheCommissionfromtheinitialmodestobjectives.


MR. BENGZON. Madam President, is the committee suggesting that the formulation of CommissionerNolledo,asamendedbyme,wouldthenbetransposedtopage2,somewhereonthelastline?

MR. MONSOD. Yes,afterwehavegonethroughsomebasicfunctionsofthecommission,thenwecanhavealastphraseandleavethatuptoCongress.Wehavetakenthatintoaccount,MadamPresident.

MR. NOLLEDO. In that case, we can add to the last part of the section the phrase“UNTIL OTHERWISEPROVIDEDBYCONGRESS.”So,wewillgivetothecommissiontheinitialdutytodefineitsjurisdiction,takingintoaccounttheBillofRightsandtheconventionmentionedbyCommissionerBengzon,afterwhichweaddthephrase“UNTILOTHERWISEPROVIDEDBYCONGRESS.”Ultimately,itwillbeCongressthatwilldeterminetheextentofthejurisdictionoftheCommissiononHumanRights.


THE PRESIDENT.CommissionerBernasisrecognized.

FR. BERNAS. I am a little uncomfortable with the idea of allowing the commission to fix its jurisdiction.FixingjurisdictionisafunctioneitheroftheConstitutionitselforofthelegislativebody,notevencourtsfixtheirownjurisdictions.ItiseithertheConstitutionorthelegislativethatdoesthis.So,itwouldseemtomethatifwehavetotalkaboutjurisdictionatall,weshouldnotleaveittotheHumanRightsCommissionbutweeitherdoitourselvesorweleaveittoCongress.

MR. MONSOD. MadamPresident,justanadditionalcomment.Weweregoingtoproposeasacomplementaryprovision to this article a section in theTransitory Provisions to the effect that until the Human RightsCommission is established by Congress in accordance with this Constitution, the present PresidentialCommitteeonHumanRightswillfunctionasthecommissionsothatitwillalreadyhaveitsowntermsofreference.ThenCongressmayexpand,delineateoraddtothesefunctions.

So,thatwouldbethecomplementaryapproachtothissection,MadamPresident.

MR. BENGZON. IthinkwewillagreetothatasanadditiontotheinterpretationIarticulatedafewminutesagoandwhichshouldbereadintotherecord.ThenweleavethedefinitionoffunctionstoCongress.

MR. NOLLEDO.IagreewithCommissionerBengzon,MadamPresident.

MR. MONSOD.MadamPresident,wewillbegladtoconsiderthesubsequentwordingsaswegofurtherintothisarticle.


MR. TINGSON. MadamPresident.

THE PRESIDENT. CommissionerTingsonisrecognized.

MR. TINGSON. MadamPresident,sinceIamacosignatorytothefirstpartoftheamendmentbyCommissionerNolledo,mayIbeclarifiedononepoint.Thechairmanofthecommitteeorthecommitteeitselfprovidesonpage2,line12theestablishmentofacontinuingprogramofeducationandinformationtopropagatetheprimacyofhumanrights.Isupposewearereferringtoacontinuingprogramofeducationthatisbasedon


theBillofRights,whichispartoftheConstitution.Isthatright,MadamPresident?

MR. GARCIA.Withregardtohumanrightseducation,thiswoulddependontheaudience,ofcourse.TheprogramwillbebasedontheUniversalDeclarationofHumanRights,theInternationalCovenantonCivilandPoliticalRights,andthen,ofcourse,theBillofRights.

Now,fortheparticularaudiencesamonglawenforcementagencies,suchasthemilitary,therearedefinitestandardrulesforthetreatmentofprisoners.ThereisalsotheDeclarationAgainstTortureandothersuchtreatiesor international instrumentswhichcouldhelpeducateourpeopleandformtheirconsciousnessregardinghumanrightsprotection.


MR. TINGSON. Specifically, would that include materials like the Universal Declaration of Human RightsissuedbytheUnitedNations?

MR. GARCIA.Exactly.

MR. TINGSON. Thankyouverymuch.

MR. RAMA.MadamPresident,IaskthatCommissionerDavidebeallowedtocontinuehispresentationofamendment.


MR. DAVIDE.MayweknowwhatisthereactionofthecommitteetomyproposedamendmentonSection2(2)?

MR. NOLLEDO.MadamPresident.


MR. NOLLEDO.Thankyou,MadamPresident.

Iwould liketoamendtheamendmentofCommissionerDavidebyaddingsomewordstohis lastword.WhatisthelastwordoftheCommissioner,please?

MR. DAVIDE.Wewillstopattheword“thereof”online4.

MR. NOLLEDO.DoesthatcompleteSection2(2)onpage2ofthecommitteereport?

MR. DAVIDE.Yes.

MR. NOLLEDO. Madam President, I propose to add the following clause and place a period (.) after it:“PROVIDED,HOWEVER,THATTHERULESOFEVIDENCESHALLNOTBESTRICTLYFOLLOWEDINHEARINGSCONDUCTEDBEFORETHECOMMISSION.”


MR. DAVIDE.MadamPresident,thatmightbeincludedalreadyintheauthorityofthecommissiontoadoptitsownrulesofprocedure.

MR. NOLLEDO.MadamPresident,whenweauthorizethecommissiontoadoptitsownrulesofprocedure,itdoesnotnecessarilymeanthattherulesofevidenceshallnotbestrictlyfollowed.iftheGentlemandoesnotmind,mayIaskhimtoreconsiderbecausegivingthecommissionthepowertoadoptrulesofprocedurewillnotprecludemyamendment.

MR. DAVIDE.MayIsuggestthattheproposalbetakenlaterbecauseitcouldbeincorporated,probably,asaseparatesentence.

MR. NOLLEDO. IwouldliketoknowwhatisthereactionofthecommitteetotheDavideamendment.So,wecanhavethatfirst?

FR. BERNAS.IthinkthecommitteeisinfavorofhavingageneralizedstatementofthepoweroftheHumanRightsCommissiontoissuerulesandregulationsnecessaryforitsinvestigatoryfunction.

MR. DAVIDE. Yes.Isthisseparatefromthepresentsection2(2)?

FR. BERNAS.Itwillbeinlieuof,andwillincludethepowertoissuesubpoenaandsubpoenaducestecum.

THE PRESIDENT. WillCommissionerDavidereadhisproposalagainfortheguidanceofthecommittee.

MR. DAVIDE.Yes,MadamPresident.Online1,substitutethewords“Issuesubpoenaandsubpoenaducestecum “with the following: “ADOPT ITS OWN RULES OF PROCEDURES INCLUDING THE ISSUANCE OFCOMPULSORYPROCESSES.”

Online3,insertbetweenthewords“materials”and“and”thefollowing:comma(,)RECORDS;thenonline4,deletethewords“inaccordancewith”;deletetheentirelines5and6;sothattheamendedsubsectionwill now simply read as follows:“ADOPT ITS OWN RULES OF PROCEDURE INCLUDINGTHE ISSUANCE OFCOMPULSORYPROCESSEtocompeltheattendanceofanypartyto itsproceedingsortheproductionofmaterials,RECORDSanddocuments,withthepowertociteforcontemptforviolationsthereof.”

FR. BERNAS.Thelanguageisalittleawkward,MadamPresident.

MR. DAVIDE.“ADOPTITSOWNRULESOFPROCEDUREWHICHSHALLINCLUDERULESONTHEISSUANCEOFCOMPULSORYPROCESSES.”

FR. BERNAS.Butwouldthatnotbeincludedalreadyintheideaofempoweringthecommissiontoadoptitsownrules.



MR. DAVIDE.Precisely.

FR. BERNAS. Inotherwords,wearetryingtoshortenthisasmuchaspossible.

MR. DAVIDE.Myproposalisjusttosubstitutetheoriginalwith“ADOPTITSOWNRULESOFPROCEDURE.”

MR. MONSOD. Is itall rightwiththeproponent ifwesay,“ADOPT ITSOWNRULESOFPROCEDUREANDEVIDENCE”?

MR. DAVIDE. Idonotthink it isnecessarybecausethe idea isthatthiscommissionshouldnotreallybeboundbythetechnicalrulesofevidence.Itisinvestigativeincharacter.

MR. MONSOD. Weareamenabletojustusingthephrase“ADOPTITSOWNRULESOFPROCEDURE.”

MR. DAVIDE. Yes.

MR. NOLLEDO. Inthatcase,IwillbesatisfiedifthecommitteereiteratesthestatementofCommissionerDavidethat inadoptingtherulesofprocedurethecommissionwillnecessarilyadoptrulesonevidence;thatthecommissionisnotboundbythetechnicalrulesofevidence;andthattherulesofevidenceshallnotbestrictlyfollowedinproceedingsbeforeit.

FR. BERNAS. Therulesofevidencethatwillbefollowedarethelooserrulesapplicabletoadministrativeagencies.

MR. NOLLEDO.And,therefore,theyarenotstrictlyappliedastechnicallyunderstoodinthepresentationofevidencebeforejudicialbodies.

FR. BERNAS. Yes.

MR. NOLLEDO.Inthatcase,MadamPresident,Iwithdrawmyamendment.

Thankyou.

MR. PADILLA.MadamPresident.

THE PRESIDENT.CommissionerPadillaisrecognized.

MR. PADILLA. With the insertion of the phrase“ADOPT ITS OWN RULES OF PROCEDURE,” and with theeliminationofthelastphrase“inaccordancewiththeRulesofCourtpromulgatedbytheSupremeCourt,”willthismeanthattherulesofprocedureofthiscommissioncandepartfrom,orevenviolate,theRulesofCourt?

MR. DAVIDE.MadamPresident,mayIrespondtoit?



MR. DAVIDE. Under the Article on the Judiciary, rules of procedure of all quasi-judicial bodies andadministrativebodieswillbesubjecttoreviewbytheSupremeCourt.And,therefore,therulesofproceduretobeadoptedbytheproposedCommissiononHumanRightswillbesubjecttoreviewbytheSupremeCourt.

MR. PADILLA.Yes.Thatdoesnotanswerthequestion.WhetheritcanbereviewedbytheSupremeCourtissomethingseparate.Myquestionis:Willtheeliminationofthephrase“inaccordancewiththeRulesofCourt” mean that the rules of procedure to be adopted by this commission can deviate from, and evencontradictorviolate,theRulesofCourt?

MR. DAVIDE. It will not follow because the Supreme Court will have the authority to review all rules ofprocedureandtheSupremeCourtwilltoitthatitwouldbwithintheframeworkoftheRulesofCourt.

MR. PADILLA. WhytheneliminatetheRulesofCourtthathavebeenpromulgatedbytheSupremeCourt?

MR. DAVIDE. My first answer, Madam President, will be that in all the provisions on constitutionalcommissions,orontheOmbudsman,forinstance,wealwaysallowthesecommissionstoadopttheirownrulesofprocedure,butsubjecttothereviewoftheSupremeCourt.Sincethisispracticallyanindependentcommission,evenatalowerlevelthantheregularconstitutionalcommissions,weshouldadoptthesameprocedureinthematterofvestingitwithcertainauthorityandpowers.

MR. PADILLA.So,thewords“SUBJECTTOREVIEW”shouldbeadded.

THE PRESIDENT.Maybe,wecouldalsoaddthatthementionoftheRulesofCourtherewasmadeinrelationtothepowertociteforcontempt.

MR. DAVIDE.Yes.

MR. REGALADO. MadamPresident.


MR. REGALADO. MayIcommentonthis?



MR. REGALADO. Yesterday,therewasaquestionastowhethertheproposedCommissiononHumanRightswouldbe,ineffect,aquasi-judicialbody,andthecommitteesaidthattheyenvisionedaquasi-judicialbody.Althoughlater,onquestioningbyCommissionerRomulo,itseemsthatthepositionofthecommitteewasthatthisispurelyanadministrativebody,notaquasi-judicialbody.Iagreethatitisnotaquasi-judicialbodybecauseithasnoadjudicatoryfunctionssubjecttoreviewbyahighertribunal.Itispurelyanadministrativefact-findingbodysimilartotheAgravaBoard.Itisnota“judicialbodysoftenedwithaquasi”becauseithas


noadjudicatoryfunctionsandthereisnoprovisionhereforappellatereviewofitsfunctions.

CommissionerDavidehascalledattentiontotheprovisionsoftheArticleontheJudiciarythattheseruleswill,afterall,besubjecttoreviewbytheSupremeCourt.IregrettodifferwiththeCommissionerbecauseunderSection7oftheArticleontheJudiciary,therulesofprocedureofspecialcourtsandquasi-judicialbody.Whilethecommissionmay,therefore,adoptitsownrules,thesemustnotdiffersubstantiallyfromtheprovisionsoftheRulesofCourt.Ofcourse,onthematteroftherulesofevidence,itisobviousthattherulesofevidenceherewillnotstrictlybeappliedbecausethisisanadministrativebody.TheRulesofCourtprovidethattheywillonlyhavesuppletoryapplicationtononjudicialproceedings.

Onthismatterofthepowertociteforcontemptforviolationsthereof,whereinproperlyappendedisthephrase“inaccordancewith theRulesofCourt” Iam in favorof retainingthephrase“inaccordancewiththeRulesofCourt”forthisreason:therearetwokindsofcontemptproceedingsthatarefollowedinthePhilippines-thejudicialmethodwhichisundertheRulesofCourt,andthatmethodunderthelegislativepowertociteforcontempt.Andthere isawhaleofadifferencebetweenthetwo.Thesearenotmerelyrules of procedure because the peculiarity of the rule on contempt is its being a procedural rule with apenalcharacter.Asamatteroffact,itisaspecialcivilactioninthenatureofacriminalcharge.Inthecaseofcontempt,pursuanttotheprovisionsoftheRulesofCourt,therearespecificpenaltiesfordirectcontemptorinfaciecuriaeandindirectcontempt.

Ontheotherhand,thereisalsoanotherkindofcontemptproceedingsinthelegislative,likeCongress.Letustakethecase,forinstance,ofArnaultvs.NazarenowherethepowerofCongresstopunishforcontemptandtoholdArnaultindefinitelyindetentionuntilhewouldrevealwhatwasdesiredintheinvestigationoftheTambobongBuenavistaestateswaspursuanttotheinherentpowersofCongresstopunishforcontempt,notinaccordancewiththeRulesofCourtonthepoweroftheJudiciarytopunishforcontempt.

ThepeculiarityoftheCommissiononHumanRightsisthat,itispurelyadministrative,itisnotquasi-judicialatall.Ifitwereaquasi-judicialbody,justlikethefiscal’soffice,ifthesubpoenasarenotfollowedandwhilethefiscaldoesnothavethepowertociteforcontempt,hecanapplytotheproperregionaltrialcourtforthecontemnertobeorderedtoappearbeforethefiscal.But,again,thisisnotaquasi-judicialbody.ThisissimilartotheAgravaBoardwhichwaspurelyfact-findingthatiswhyitwasnecessarytoempoweritwiththepowertociteforcontemptandtopunishforcontemptinaccordancewiththeRulesofCourt,inordertodistinguishitfromthelegislativeprocessofholdingpersonsincontemptwhereinthepenaltyissubjectonlytothediscretionofCongress,unlikethoseintheRulesofCourtwheretherearespecificpenaltiesfordirectorindirectcontempt.

Forthatreasonandtoavoidsomeconfusionordoubtsinthefuture,IamproposinganamendmenttotheamendmentofCommissionerDavide,ifhewillconsiderit,thatwemaintainaftertheword“thereof”thephrase“inaccordancewiththeRulesofCourtINTHEPHILIPPINES”-the“RulesofCourtinthePhilippines”beingthecorrectandcompleteofficialtitleoftherules-justso,thiscommissionmaynotadoptrulesofcontemptsimilartolegislativebodieswhichisalittledangerous.



MR. DAVIDE. InthelightofthedisquisitionsmadeanditbeingnowmadetoappearthatthereviewbytheSupremeCourtoftheruleswillnotbeavailablebecauseoftheadmissionofthecommitteethatthis


HumanRightsCommissionisnotaquasi-judicialbody,mayIproposeacompromiseamendmentwhichwouldread:“ADOPTITSOWNRULESOFPROCEDURESUBJECTTOREVIEWBYTHESUPREMECOURT.”Thisamendmentwillbeequatedwiththerulesofprocedureofquasi-judicialbodiesandspecialcourtsundertheArticleontheJudiciary.

FR. BERNAS.TheunderstandingisthatifthereisareviewbytheSupremeCourt,thepurposeofthereviewistoseewhetheritisinaccordancewiththeRulesofCourtinthePhilippines.

MR. DAVIDE. Yes.

MR. DE LOS REYES.MadamPresident.


MR. DE LOS REYES.MayIasksomequestionsoftheproponent?IfwedonotplaceintheConstitutionthephrase“adoptrulesofprocedure,”isthereanythingthatwillpreventthisHumanRightsCommissionfromadoptingitsownrulesofprocedureeveniftheConstitutionweresilentonthat?


MR. DAVIDE.MadamPresident,of theConstitutionweresilentonthat, thecommissionmightnothavethatpowerandthatisthereasonwhywemadeanenumerationofitspowersandfunctions.Theissuanceofsubpoenasducestecum,aswellascitinganindividualforcontemptforfailuretoappearinanyof itsproceedings,mustbeinaccordancewiththeRulesofCourt.

MR. DE LOS REYES. I think I have to disagree most respectfully. Whenever a commission is created, itcarrieswithitthenecessarypowertomakeitsownrulesofprocedure;and,therefore,itismyrespectfulsubmission,MadamPresident,thattheamendmentwhichwillempowerthecommissiontomakeitsownrulesofprocedureissuperfluousandunnecessary.



FR. BERNAS. Iwouldseemtomethatthisisnotjustaquestionofempoweringthecommissiontopromulgateitsownrules,butitisalsoacommandtothecommissiontomakesurethatitpromulgatesitsownrulesbecauseitispossiblethatthecommissionmightnot,andinfairnesstothepublicunderinvestigation,thepublicshouldknowwhattherulesofthegameare.So,itismorethanjustgivingitthepower,butrathergivingitacommandthatitbetterissuerules.IwouldalsotendtoagreewithCommissionerRegaladothatifthisisapurelyadministrativebody,wewouldhavetospecifyitspowertociteforcontemptbecausethepowertociteforcontemptisinconnectionwithjudicialandquasi-judicialpowers.

MR. DAVIDE. Canwehavethecommitteeformulatetheproposedcombinedamendment?

THE PRESIDENT. Maywehavetheamendmentreadagain?


FR. BERNAS.“ADOPTITSOWNRULESOFPROCEDURES,CITEFORCONTEMPTFORVIOLATIONSTHEREOFINACCORDANCEWITHTHERULESOFCOURTPROMULGATEDBY…”

THE PRESIDENT. Is there any objection to this proposed amendment which has been accepted by thecommittee?



MR. REGALADO.MadamPresident,inconnectionwithmystatementyesterdaytothecommittee,Iproposeto delete the phrase“PROMULGATED BYTHE SUPREME COURT,” and continue with the phrase: ”INTHEPHILIPPINES”becausethatistheofficialtitleoftherules.

THE PRESIDENT. Isthisacceptedbythecommittee?

MR. SARMIENTO.theamendmentisaccepted,MadamPresident.

THE PRESIDENT. Isthereanyobjection?(Silence)TheChairhearsnone;theamendmentisapproved.

MR. RAMA. MadamPresident,IaskthatCommissionerRegaladoberecognized.

THE PRESIDENT.CommissionerRegaladoisrecognized.

MR. REGALADO.MadamPresident,Ihavealreadygiventheintendedamendment,andIhavetoingraftittotheDavideamendment.

MR. RAMA.MadamPresident,IaskthatCommissionerRosarionBraidberecognizedonSection2.


MS. ROSARIO BRAID.MadamPresident,IwouldliketoproposeanamendmenttoSection2(4),lnes12to13.

MR. NOLLEDO. Madam President, with due respect to Commissioner Rosario Braid, I have an anterioramendmenttoSection2(3).

THE PRESIDENT.Pleaseproceed,CommissionerNolledo.

MR. NOLLEDO. Madam President, copies of this amendment have been distributed to the honorableMembersoftheCommission.Aftertheword“measures”online7,page2,Iproposetoaddthefollowingwords so that Section 2 (3) will now read as follows:“Provide appropriate legal measures WHICH AMYINCLUDEINJUNCTIVERELIEFANDISSUANCEOFTHEWRITOFHABEASCORPUSfortheprotectionofhumanrights of all persons within the Philippines, provisions for legal aid services for indigent persons whosehumanrightshavebeenviolatedorneedprotection”.ThewordsIproposetoaddare“WHICHMAYINCLUDEINJUCTIVERELIEFANDISSUANCEOFTHEWRITOFHABEASCORPUS,”andtheseareintendedtostrengthenthepowersandjurisdictionoftheCommission.Thesewordsarerecommendedtobeincludedtherein,takingintoaccounttheinterpellationsofCommissionerNatividadinyesterday’ssession.Andifthecommission


wouldhavenopowertoissueinjunctiverelief,say,againstharassmentswhichmayalsoinvolveviolationsofhumanrights,andtherewouldbenopowertoissuethewritofhabeascorpuswhichisajudicialpower,butwhichthisConstitutionalCommissionhasjurisdictiontogivetotheCommissiononHumanRightsthenthecommissionwouldhavenoreasontoexist.

Iwouldliketociteanexample,MadamPresident.Herecomesacomplainant.Herhusbandisdetainedbeingtortured;shegoestotheHumanRightsCommissionforrelief.Dowemeantosaythatthecommissionispowerlesstoorderthatthepersonofthehusbandbeproducedbeforeit,beforeinvestigationproceeds,especiallyiftherearechargesoftorture?ThemembersoftheHumanRightsCommissionwouldliketoseeiftherearereallyphysicalinjuriesinflicteduponthedetainedperson.

IaskeveryMemberofthisCommissiontothinkitoverbecauseIwasalsoavictimofhumiliationinsidethejail,togetherwithCommissionersCalderon,RamaandRodrigo.IfthecommissioncaninvestigatewithouthavingthepowertoissueawritofhabeascorpusorawritofAmparoascontemplatedbyCommissionerAzcuna,thenletusnotcreatethisHumanRightsCommissionanymore.ItisreallyapapertigerasstatedbyCommissionerRodrigo.Itcaninvestigatebutthenitdoesnotevenknowwhatishappeninginsidethejailofthemilitary.Amanisbeingtortured,andyetthecommissionispowerlesstoordertheproductionofthebodytoseewhetherthechargeshavesufficientlegalbasisornot.

Iaskthemembersofthecommitteetopleaseconsiderseriouslytheinclusionofthepowertoissueinjunctivereliefandthewritofhabeascorpustomakethecreationofthecommissionmoremeaningful.




FR. BERNAS.Without meaning to contradict Commissioner Nolledo, when we give this commission thepowerofinjunctiverelief,andnotjustanyinjunctiverelief,andincludingtheissuanceofawritofhabeascorpus,arewenotchangingthenatureofthecommission,thatis,arewemakingitaquasi-judicialbody,asamatteroffact?

MR. NOLLEDO. MadamPresident,wecangrantjudicialpowerstoquasi-judicialbodies.AnexampleistheNationalLaborRelationsCommission,formerlyablyheadedbyCommissionerOple,whichhadthepowertoissuesubpoenaducestecum,subpoenatestificandumandtoholdincontemptwitnessesbeforeit.Thesearejudicialpowers.

FR. BERNAS. Theyarecorrect,MadamPresident.Iwasjusttryingtoclarifythisinthelightofwhatwejustapproved.SothatifweaccepttheamendmentofCommissionerNolledoourdiscussionwithCommissionersRegaladoandDavidewouldreallyhavetobereversedbecausewehaveconvertedtheCommissionintoaquasi-judicialbody.AndIamnotsayingthatIamagainstconvertingthisintoaquasi-judicialbody.


FR. BERNAS.Infact,thatistheeffect.


MR. NOLLEDO.Weareconstituting,MadamPresident,abodythatisanexceptiontotherule.AscontemplatedbytheDavideamendment, itmustbe inaccordancewiththepertinentprovisionsoftheRulesofCourtbecausewearestrengtheningthepowersoftheCommission.

IrecommendthatwejustdroptheideaofcreatinganindependentCommissiononHumanRightsifwedonotgiveteethtothisbody.

FR. BERNAS. Let us suppose that we accept this. Everything we said in section 2(2) would really beunnecessarybecausenow,wehaveabodythatisquasi-judicialand,therefore,subjecttoalltherulesofaquasi-judicialbodyasfoundinourRulesinthejudiciary.

MR. NOLLEDO. I agree with that as a general statement. But we have to consider the functions of thecommissioninconsideringmyamendment.

FR. BERNAS. MadamPresident,IamnotdisagreeingwiththesubstanceoftheproposaloftheGentleman.Iamjusttryingtoclarifyconcepts.


FR. BERNAS. Personally,Iwouldleavetheissuanceofthewritofhabeascorpustothecourtsbecausetheverynatureofthewritofhabeascorpusisthatitisaninstantaneousremedyandthebodyitselfcangotocourtandaskfortheissuanceofawritofhabeascorpus.

MR. NOLLEDO.Inthemeantime,thehusbandisalreadydead.

MR. SARMIENTO. May I share this information, Madam President. Lately, the Supreme Court has beenliberalwithrespecttotheissuanceofawritofhabeascorpusonthebasisofmeretelegrams.SodoestheGentleman not think that this would be unnecessary since courts are now very liberal?This was a voteadoptedjustrecentlybytheSupremeCourt.


MR. NOLLEDO. Idonotbelieveso,MadamPresident.

MR. SARMIENTO. Andbesides,courtsareoperative,theyarereallyliberal.

MR. NOLLEDO. WhenNinoyAquinofiledapetitionforawritofhabeascorpus,ittooktheSupremeCourtseveralyearstodecideonthepetition.EvenwithrespecttothepresentlyconstitutedSupremeCourt,Ihavemydoubtsbecausecircumstanceschange.IfthisisaninstantaneousremedyasstatedbyCommissionerBernas, I think the committee should adopt this amendment because the commission would really beuselessifitcannotgiveinstantaneousremedyascircumstancesmaydemand.


THE PRESIDENT. CommissionerFozisrecognized.


MR. FOZ.IthinkthereissomekindofdivergenceofopinioninthecommitteebecausepersonallyIwouldsupporttheproposalofCommissionerNolledotovesttheproposedcommissionwiththepowertoissueinjunctivereliefandalsoallotherreliefsdependingonthecircumstances.

MR. NOLLEDO.Iamhappythatthechairmansupportsme.Whydowenotcompromise?AschairmanoftheCommitteeonLocalGovernments,whenIhearanamendment,Iwouldtrytoreasonoutandsuggestamendments,too.Forexample,inordertomeettheobjectionsofCommissionerBernas,wehavetosubjecttheorderoftheHumanRightsCommissiontojudicialreview.IwillagreewithsubjectingtoreviewtheorderofthecommissionbytheSupremeCourt.

THE PRESIDENT. MaywehearCommissionerAquinofirstbeforeweenterintoanycompromise?

MR. FOZ. IthinkthereissomekindofdivergenceofopinioninthecommitteebecausepersonallyIwouldsupporttheproposalofCommissionerNolledotovesttheproposedcommissionwiththepowertoissueinjunctivereliefandalsoallotherreliefsdependingonthecircumstances.

MR. NOLLEDO.Iamhappythatthechairmansupportsme.Whydowenotcompromise?AschairmanoftheCommitteeonLocalGovernments,whenIhearanamendment,Iwouldtrytoreasonoutandsuggestamendments,too.Forexample,inordertomeettheobjectionsofCommissionerBernas,wehavetosubjecttheorderoftheHumanRightsCommissiontojudicialreview.IwillagreewithsubjectingtoreviewtheorderofthecommissionbytheSupremeCourt.

THE PRESIDENT.MaywehearCommissionerAquinofirstbeforeweenterintoanycompromise?

MS. AQUINO. MadamPresident,IwouldonlyliketoexpressmysupportforthepositionofCommissionerNolledo,however,wemighthavetoconfronttheproblemofoverhaulingtheverynatureoftheHumanRightsCommissioninthesensethat,ifwevestthecommissionwithadjudicativefunctions,necessarilyitwillhavetoassumelikewisethemultifariousaccoutrementswhichareneededfortheenforceabilityofitspowerstoissuethewritofhabeascorpus.

Asanadministrativeagency,thecommissioncannotenforceitsrulingagainstthemilitaryestablishment.Forexample,unlesswerealignitspowersanddutiesaccordinglyasanadjunctivebody.

MR. NOLLEDO. AndtheConstitution,MadamPresident,cangrantthatpower.Besides,thereisadistinctionbetweenadjunctivepowerandthepowerto issueawritofhabeascorpus.Thepowerto issueawritofhabeas corpus does not necessarily mean that the quasi-judicial body is making an adjudication or ismakingadecision.Itisonlypreparatorytofurtherconsiderationofthecase.Whenamanisbeingtorturedandthereisnopoweronthepartofthecommissiontoissueawritofhabeascorpustoordertheproductionofhisbodyinordertoseewhethertorturesarebeingdone,thenpleaseletusnotcreatethisCommissiononHumanRights.

MS. AQUINO.MadamPresident,IalreadyagreedwithCommissionerNolledo,however,Icannotagreetohispositionthattheissuanceofthewritofhabeascorpusasaremedyisnotanadjunctivepower;itisalevelofappreciationofevidenceneededtovestpreciselyinthepersonseekingrelieftherighttobedeliveredtocourtandforaninquiryintothelegalityofhisdetention.

MR. NOLLEDO. The appreciation of evidence is not done in the technical sense because affidavits are


attached to the petition and then as long as the allegations show a prima facie case on the part of thecomplainant,thecourtoftheadministrativebodymustbeabletograntimmediaterelief.

MS. AQUINO. I am not so much concerned with that as I am concerned with the power of the court toenforce the writ. I mean, as it is already constituted the way we have agreed in the initial sections, thecommissionwouldnothavethatpower.

SUSPENSIONOFSESSION

MR. SARMIENTO. MadamPresident,mayweaskforasuspension.

THE PRESIDENT.Thesessionissuspended.

It was 3:43 p.m.

RESUMPTIONOFSESSION

At 3:57 p.m., the session was resumed.


REV. RIGOS. MadamPresident.

THE PRESIDENT. CommissionerRigosisrecognized.

REV. RIGOS. WeaskthatCommissionerNolledoberecognized.



MR. NOLLEDO.MadamPresident,afterexhaustiveanddeepconsultationwiththechairmanandmembersofthecommittee,myamendmentonline7,page2,willnowreadasfollows:“Provideappropriate legalmeasuresWHICHMAY INCLUDEPRVENTIVERELIEF.” It isunderstoodthat thewords“PREVENTIVERELIEF”should cover an order from the commission to conserve the body of the detainee and to prevent theauthoritiesfromhidingit,orfromtorturingortransferringthebodyuntilfurtherordersofthecourt,withoutprejudicetotherightoftheaggrievedpartytopetitionfortheissuanceofawritofhabeascorpuswiththeSupremeCourtorappropriatecourt.

FR. BERNAS.Itisnotonlythepartywhocanaskforawritbutthecommissionitselfcanaskforit.

MR. NOLLEDO. Yes.AndthisprovisionisalignedwiththeprovisionsonpreventivemeasurescontemplatedinArticle24oftheRevisedPenalCode.IwouldliketomentionCommissionersColayco,Aquino,Regalado,NatividadandAzcunaascoauthors.




MR. DAVIDE.MayIproposeanamendment?Theamendmentshouldbeplacedonline9aftertheword“including,” so that the phrase will read:“including PREVENTIVE MEASURES AND provisions for legal aidservices.”

MR. NOLLEDO. Iaccepttheamendment,MadamPresident.

MR.SARMIENTO. Howwilltheamendmentread?

MR. DAVIDE. Theamendmentwillnowread:“includingPREVENTIVEMEASURESANDprovisionsforlegalaidservicesforindigentpersons.”

MS. AQUINO. MadamPresident.

THE PRESIDENT. CommissionerAquinoisrecognized.

MS. AQUINO. Just for clarification and also for the record. Does this power include the power to ordervisitationbycounselandrelative?

MR. NOLLEDO. Certainly.

MS. AQUINO. Doesthispowerincludethepowertoordermedicaltreatmentforthedetainee?

MS. NOLLEDO.Yes.

MS. AQUINO.Butdoesthisexcludethepower to releaseor to inquire intothe legalityof thedetentionwhichessentiallypertainstothewritofhabeascorpus?

MR. NOLLEDO.Yes.ItwillbetheSupremeCourtthatwilldecidethosecases.

MR. FOZ.Madampresident,inthatconnection,IdonotseeanylegalbarfortheHumanRightsCommissiontoinquireintothelegalityofdetention.

MR. NOLLEDO. Withoutfinallydecidingonit.

MR. FOZ. Yes

MR. NOLLEDO. Isee.

MR. FOZ.Butthecommissioncanreallyinquireastowhenitcaninvestigateandthenitinquiresintoalltheaspectsofthedetention.

MR. NOLLEDO.Iagree.Thatwillbepartofitsinvestigativepower,andwillformalsopartofitsrecommendationtotheappropriatecourtorbodyorofficer.


MR. PADILLA. MadamPresident.


MR. PADILLA. I heard the phrase“PREVENTIVE MEASURES” and reference was made to article 24 of theRevisedPenalCode.Thesearepreventivemeasuresthatarenotconsideredpenalties.Theyhavenoreferencewhatever.

MR. NOLLEDO.Iusedtheword“alignment”UPONSUGGESTIONOFcommissionerRegalado.IdidnotsaythatIamapplyingtheprovisionsofthatarticle.Theyareonlysimilartoeachother,MadamPresident.

MR. PADILLA.Andweshouldnotforget,MadamPresident,thatapersonwhohasbeenarrestedordetainedbutisnotjudiciallychargedmustbereleasedwithinfiveworkingdays.



MR. NATIVIDAD. During the interpellations, I brought up the matter to enjoin because I believe in thestatementofmyco-proponentthatthis isnecessaryto implementtheprogramofprotectionofhumanrights. Suppose there is a claim that the complainant is being harassed. Will this amendment we areproposingcoverthissituationwherethecommission,withthehelpofthelocalpolice,enjointhepartiesfromcontinuingtheharassmentofthecomplainant?


MR. NOLLEDO. Notbeinganadjudicativefunction,Isayyes.

MR. MATIVIDAD. Thankyou.



MS. AQUINO. Justoneclarification.Willthispowerhavetoarisenecessarilyfromanadversarialprocedure?

MR. NOLLEDO.No.

MS. AQUINO. In which case, they will have to be bound by the rigid requirements of substantive andproceduraldueprocesswhich,Isubmit,shouldnotsaddlethefunctionandthepowerofthiscommission.

MR. NOLLEDO. Notnecessarily,MadamPresident.Iwouldliketoknowthereactionofthecommittee.

MR. FOZ.Thecommitteeacceptstheamendment,MadamPresident.

MR. SARMIENTO.MadamPresident,weaccept theamendment includingtheanswersofCommissionerNolledo.


THE PRESIDENT.DoesCommissionerSarmientomeanthatCommissionerNolledo’sanswerswillbeincludedintheamendment?

MR. SARMIENTO.MadamPresident,aspartofourrecord,toclarify.

Mayweasktheproponentreadtheamendment?


MR. NOLLEDO. “ProvideappropriatelegalmeasuresfortheprotectionofhumanrightsofallpersonswithinthePhilippines,includingprovisionsforPREVENTIVERELIEFASWELLASforlegalaidservicesforindigentpersons,etcetera.”

MR. DAVIDE.MadamPresident

MR. NOLLEDO. May I ask Commissioner Davide, who amended my amendment, to please read myamendmentasamendedbyhim?

MR. DAVIDE. Online9,aftertheword“including,”insertthephrase“PREVENTIVEMEASURESAND”sothattheentirelinewillread:“includingPREVENTIVEMEASURESANDprovisionsforlegalaidservicesforindigent.”

MR. NOLLEDO. Thankyou,MadamPresident.

THE PRESIDENT. Is there any objection to this proposed amendment which has been accepted by thecommittee?(Silent)TheChairhearsnone;theamendmentisapproved.

REV. RIGOS. MadamPresident,wearenowreadytovoteonparagraph(3)asamended.


THE PRESDIENT. CommissionerDavideisrecognized.

MR. DAVIDE.Therearestillamendmentsonpage2,paragraph(3),whichwewouldliketointroduce.

THE PRESIDENT. CommissionerDavidewillpleaseproceed.

MR. DAVIDE. Online9,before“including,”insertthefollowing:“ASWELLASCITIZENSOFTHEPHILIPPINESRESIDINGABROAD.”ThiswastakenupyesterdayespeciallyinthelightoftheinterpellationbyCommissionerRama.Sothiswillthenbejointlysponsoredbybothofus.

MR. SARMIENTO. Itisaccepted,MadamPresident.

THE PRESIDENT.Theamendmenthasbeenaccepted.

Isthereanyobjectiontothisproposedamendment?

CommissionerColaycoisrecognized.


MR. COLAYCO. Clarificatory question, Madam President. How do we expect the commission to giveprotectiontopeopleoutsideourcountry?

MR. DAVIDE. ThecommissionmayavailofourdiplomaticandconsularofficestogiveimmediateassistancetogroupsofFilipinoswhoarevictimsofviolationsofhumanrightsandapplyforthenecessaryremedywiththeproperforuminsaidareas.

MR. COLAYCO.Iamnottooenthusiasticaboutthatparticularsection.

MR. DAVIDE. TherearemanyFilipinos,especiallyintheMiddleEast,whoarevictimsofviolationsofhumanrights,butwearenotprovidinganyassistance.SoperhapsthecommissioncanexpanditsserviceseventoFilipinosresidingabroad.


THE PRESIDENT. CommissionerTanisrecognized.

SR. TAN.MadamPresident, Iwould liketosupportthisproposalverymuchbecausewehavereportsofmanyFilipinomaidsanddancersandotherFilipinosworkingabroadwhoneedlegalassistance.Theyhavenoplacetogo,andwhentheygotoourembassy,theyarenotgivenassistanceandtheycomebackhome,somementallyill.



MR. PADILLA.Whydowenotjustsimplifyline8toread:“humanrightsofALLFILIPINOCITIZENS”?



MR. DAVIDE. WhenitcomestopersonswithinthePhilippines,weshouldnotdistinguishbetweenFilipinosandnon-Filipinos,butwhenitcomestopersonsabroad,themantleofprotectionmustbeonlytoFilipinocitizensandthatisthereasonwhywehavetoadoptaseparateconcept-tothoseinthePhilippines,allthepeople;outsidethePhilippines,onlytheFilipinos.

THE PRESIDENT. IsthereanyobjectiontotheproposedamendmentofCommissionerDavidewhichhasbeenacceptedbythecommittee?(Silence)TheChairhearsnone;theamendmentisapproved.

MR. DAVIDE.Onthesameparagraph,lines9and10,MadamPresident,Iwouldliketochangethewords“forindigentpersons”tothephrase“TOTHEUNDERPRIVILEGED.”Again,Iwouldliketosayifspecialattentionmustbegiven,itshouldnotjustbeabletoaffordthenecessaryassistanceofprivatelawyers.TheymustbegiventhesameprotectionsincethisisforallthepeopleofthePhilippines.

MR. FOZ. No,MadamPresident.


MR. DAVIDE. Sotheindigentpoorundertheproposalwillbetheonlyonesbenefitedbythelegalaid.MadamPresident,intheSocialJusticeArticle,weusedtheword“underprivileged,”soIinsistonmyamendmenttohavesomesymmetryinthebroaderconceptoftheArticleonSocialJustice.

MR. FOZ.IamnotexactlyopposingtheCommissioner’samendment,butIjustwouldliketostatethatthisprovisionreallyspeaksoffreelegalaidtotheindigents.

MR. DAVIDE.Yes,freelegalaid,becausetherearemanyunderprivilegedwhocannotaffordtopayforlegalaidservices.

MR. FOZ. ButiftheCommissionerwouldchange“indigentpersons”to“UNDERPRIVILEGED”itwouldcoveralotmoreground.

MR. DAVIDE.Yes,thatistheintention.Afterall,wehavetheCLAOtotakecareofit.

MR. FOZ. Thecommitteeacceptstheamendment.

THE PRESIDENT. Thecommitteehasacceptedtheamendment.Isthereanyobjection?

MR. NOLLEDO. MadamPresident,Iobjecttotheamendment.


MR. NOLLEDO.MadamPresident,asIunderstandit,“underprivileged”isbroaderthan“indigent”.Therearemanyunderprivilegedsquatterswhoareengagedinprofitablebusinessandtheycanaffordtopaythelegalfees.SoIthinkthecommitteeshouldsticktotheword“indigent”asusedintheLaurellaws.Whenwesay“indigent”,itisalmostequivalenttopaupers.Theyhavenosourceoflivelihood,orwhattheyearnfromtheirsourcesofincomewilljustbesufficienttokeeptheirbodyandsoultogether.Irepeat,“underprivileged”issobroadsothattheuseofitwouldgiveadvantagetothosewhocaneasilyaffordtopaythelegalfees. FR. BERNAS.MadamPresident.


FR. BERNAS.MadamPresident,line9doesnotsay“freelegalaidservices.”

MR. NOLLEDO.Thatwastheunderstandingwhenthechairmanwasaskedwhetherornotitisfreelegalaid services.The chairman answered in the affirmative.The word“underprivileged,” Madam President, isreallybroad.Onemaybeunderprivilegedinthesenseofpoliticalrights;orunderprivilegedinthesenseofsocialrights,etcetera.So,Ibelievethattheword“indigent”isappropriateintheprovision.IrefertopauperlitigantsintheRulesofCourt.Whenwetalkof“underprivilegedpersons,”theymaybeunderprivilegedinmanyrespects.Sotheword“indigent”shouldprevail.Wesubmitittothefloorforavote.

MR. FOZ. Actually,withouthavingaprovisionlikethis,IthinktheproposedCommissiononHumanRightsmay provide free legal aid services to the poor. I think this provision would really emphasize that thecommissionshallbeavailableforlegalaidforthosewhoserightsarebeingviolated.Sothisapplies,moreorless,tovictimsofhumanrightsviolations.



MR. NOLLEDO. Regardlessoffinancialcapacity.WhatdoesCommissionerBernassay?Ifheisagreeabletotheword“underprivileged,”Iwillwithdrawmyobjection.

FR. BERNAS.LegalAidisratherbroad,MadamPreseident.Itdoesnothavetobefree.Inthecaseofthosewhocanafford,itcouldinvolvereferralstoprivatepractitioners.

MR. NOLLEDO. Soitmaybefreeornot.

FR. BERNAS.Itwillbefreeornot.Iguesstheunderstandingisthatwhenthecommissionitselfgiveslegalaid,itwillbefree.Butinthecaseofpeoplewhocanafford,thecommissionisalsofreetogivetheirserviceforreferrals.

MR. NOLLEDO.Inthatcase,MadamPresident,Iwithdrawmyobjection.

THE PRESIDENT.Isthereanyobjection?(Silence)TheChairhearsnone;theamendmentisapproved.



MR. MAAMBONG. Justaminorclarificationwhichmayleadtosomeamendments.Doestheuseofthewords“legalmeasures”online7,page2,meanthatthiscommissionwillrecommendtoCongress,forexample,thepassageofcertainlaws?Orarewereferringtolegalmeasurestobeadoptedbythecommissionitself?

MR. SARMIENTO. I think legal measures would include legal assistance and procedures and safeguardstoensurethatthegovernmentwouldrespecthumanrightswhichthecommissionwouldrecommendtoCongress.

MR. MAAMBONG. ThatincludestheproposalofmeasurestobepassedbyCongress.

MR. SARMEINTO. Yes,MadamPresident.

MR. MAAMBONG. Regardingthewords“legalaidservices,”doesitmeanthattherewouldbesomesortofassistanceotherthanbythepresentCitizen’slegalAssistanceOffice(CLAO)undertheMinistryofJustice?IsthisanotherformofassistanceotherthanthatgivenbytheMinistryofJustice?


MR. MAAMBONG. AndthathasnothingtodowiththelegalassistanceservicesgivenbyprivateorganizationslikeCLAO,FLAGorMABINI.

MR. SARMIENTO. MadamPresident,theselegalaidserviceswouldcover“providinglegalassistance.”Andthiscommissionwouldpossiblyseektheservicesofthesehumanrightsorganizationsforeffectivelegalaidservices.


MR. MAAMBONG. Couldweproperlysaythatthis is inadditiontotheagenciesnowexistingundertheMinistryofJusticeandincoordinationwithprivatelegalassistanceoffices?

MR. SARMIENTO.TheCommissioneriscorrect,MadamPresident.

THE PRESIDENT. Inaddition,theIntegratedBarofthePhilippineshasbeengivingitsownlegalaid.

MR. MAAMBONG. Thankyou,MadamPresident.Ihavenoamendment.

REV. RIGOS. I ask that Commissioner Natividad be recognized for an anterior amendment on page 2,paragraph(2).

THE PRESIDENT. Thesamesection-section2.CommissionerNatividadisrecognized.

MR. NATIVIDAD.Iwouldliketoproposeaseparateparagraph(3)afterparagraph(2)whichreads:“EXERCISEVISITORIAL POWERS OVER ANY JAIL, PRISON OR DETENTION FACILITY.” I would like to explain with theindulgenceofthecommittee.

THE PRESIDENT. CommissionerNatividadmayproceed.

MR. NATIVIDAD.Ifeelthatmotuproprio,oruponthecomplaintofacitizenoraperson,thecommissionshouldhavethepowertovisitthesejails,prisonsandanydetentionfacilitybecauseIthinkmosthumanrightsviolationshappeninthesefacilities.Itwillbearayofhopetothosewhoaredetainedinthesefacilities,iftheyknowthatatanymomentthiscommissionmaybecomingforavisitandwillwitnesstheconditionunderwhichtheyarebeingdetained.Soevenwithoutacomplaint,Iwouldliketoseethatthiscommissioncanmotupropriovisitthesedetentionfacilitiesanddetermineforitselfifthereisanyviolationofhumanrightscommitted.

MR. SARMIENTO. Theamendmentwhichisanewparagraphisaccepted,MadamPresident.


THE PRESIDENT. WillCommissionerNatividadpleaserestatethewholeamendmentsothatwecanputittoavote?

MR. NATIVIDAD. Thenewparagraph(3)reads:“EXERCISEVISITORIALPOWERSOVERANYJAIL,PRISONORDETENTIONFACILITY.”

MR. DE CASTRO. MadamPresident.

THE PRESIDENT. CommissionerdeCastroisrecognized.

MR. DE CASTRO. MayIaskafewquestionsoftheproponent?

MR. NATIVIDAD. Gladly,MadamPresident.


MR. DE CASTRO. Supposewiththevisitorialpowersofthecommissionitfoundthattheprisonersarelivinginsubstandadrdorsubhumanconditions,whatwillthecommissiondo?

MR. NATIVIDAD. Thecommissionwillbeguidedbyitsownrules,whichwilldeterminewhetherornotanysituationconstitutesaviolationofhumanrights.Andifthesituationconstitutesaviolationofhumanofhumanrights,thenthecommissionhastofollowitsownrulesandregulations.

MR. DE CASTRO.Imean,supposethecommissionfoundoutthatthejailfacilitiesareinsubhumanconditions,whatwillitdo?Iamnotreferringtotherules;thethingiswhatitwilldo.

MR. SARMIENTO. MadamPresident,Ithinkthatwillbecoveredbythenewparagraph(4)whichprovidesforlegalmeasuresfortheprotectionofhumanrights.

MR. DE CASTRO. Willthecommissioninvestigatethepoliceofficer,whichhandlesthejailfacilities,iftheyfoundoutthatthefacilitiesareinsubhumanconditions?


MR. DE CASTRO. Supposethepoliceofficersaid,“Wehavenofund;yougiveusmoneysowecanprovidethemthehumanconditions.”

MR. NATIVIDAD.Thatistheirdefense,andthatwouldbetakenintoconsideration.

MR. DE CASTRO. Itisnotadefense,itisreality.

MR. NATIVIDAD. Yes,thatiswhyitisacompletedefenseforlackoffunds.ButIthinkthecommissionwillbemoreinterestedinwhetherpeopleinjailarebeingtortured;whetherthereisacomplainant;whethertheyarebeingkeptinasolitarycelloveranextendedperiodoftime.Andtomyownperception,thesearetheinstanceswheretheyshouldbeinterestedin.Asurprisevisit,forexample,willhelpthecommissionfindoutthattherearemanypeopleinsolitarycells.wehavereportsthatpeoplewhoarekeptinsolitarycellsoveralongperiodoftime,saymonthsoryears,losetheirpowertospeak.

MadamPresident, theseare thepracticeswhich I perceive willbe unearthed if this commissionhas thevisitorialpowersoverthesedetentionfacilities.

MR. DE CASTRO.MadamPresident,Idonotquestionthosewhoareinsolitaryconfinementandsoon.WhatIaskaboutisthesubhumanconditionsofthejailfacilities.TheCommissionerhadbeeninthepoliceserviceforsometime.Hehadinvestigatedandinspectedallthesejailfacilitiesandhadmadeurgentreportsfortheirreform,constructionorimprovement.Butuntilnow,nothinghashappened.Sowhatareourreportsfor?

MR. NATIVIDAD. Yes,IagreewiththeCommissioner.Wearealwaysreportingthesetohigherauthorities,butinthisnewConstitution,IrememberinourdiscussionwithFatherBernasthatwehadtheseprovisionsapprovedthatintheseinstanceswheretheconditionsinjailsaresubhuman,thesemayconstituteunusualandinhumanpunishment,subjecttoabatementbytheState.Andtheremedyiswideopennow.Weare,therefore,foreducationalmeasuresorforrepresentationstocongresstogivemoreappropriationsforthedetentionfacilities,MadamPresident.


MR. DE CASTRO. MadamPresident,ifthiscommissionwillgotoallthejailsinMetroManila,itwillfindoutthat these are all in subhuman conditions. the prisoners are sleeping on the cement floor without mat,withoutanything,andyetthejailauthorities,andeventhecityauthorities,couldnotdoanythingbecausetheydonothavethefunds.

Thankyou.

THE PRESIDENT. Wenowproceedtovoteontheamendmentthathasbeenacceptedbythecommittee,whichreads:“EXERCISEVISITORIALPOWERSOVERJAIL,PRISONORDETENTIONFACILITY.”

Isthereanyobjection?(Silence)TheChairhearsnone;theamendmentisapproved.

REV. RIGOS. MadamPresident,weaskthatCommissionerRamaberecognized.

THE PRESIDENT. CommissionerRamaisrecognized.

MR. RAMA. MyamendmentwasalreadystatedbyCommissionerDavide.


REV. RIGOS.MadamPresident,weaskthatCommissionerRosarioBraidberecognized.

THE PRESIDENT. CommissionerRosarioBraidisrecognized.

MS. ROSARIO BRAID. MadamPresident,mayIjoinCommissionerDavideinthisamendmentonoverseaslabor.Ihavethisasoneofmyamendments,andtheotheronewillbeanamendmenttoline12,paragraph(4)whichnowbecomesparagraph (5).After thesentence“Establishacontinuingprogramofeducationand information to propagate the primacy of human rights,” add the following:“UNDERTAKE RESEARCHONPEACE,DEMILITARIZATION,NONVIOLENTSTARTEGIES,ANDRELATEDPROBLEMAREAS.”MayIgivethereasonforthisamendment?

THE PRESIDENT. TheCommissionerwillpleaseproceed.

MS. ROSARIO BRAID. Madampresident,thepresentfunctionsfocusoninvestigativeandrecommendatorypowersgiventothecommissionwhichwouldincludesituationersandstatisticsonhumanrightsviolations,whichisashort-termstrategy.Thepolicyresearchaspectherewouldincludethemedium-tolong-termprogramwhichwillundertakeresearchonmeanstoattainingnationalandinternationalpeace,studyingwaysofworkingtowardsthegoalof respect forall therightsofpeoplewithoutdistinctiontorace,sex,language, religionorphilosophicalconviction,attendingto factorswhich leadtoviolence,ethnic, racialor religious discrimination, including colonialism and neocolonialism; and expanding programs orrehabilitationoftorturevictims.Thiswould,therefore,expandthetoolsoflegalmeasuresnowemployedtoresearchandwouldleadtomorecontinuingeducationandmoreuseofmediainachievingtheendsofthecommission.




FR. BERNAS.The committee accepts the spirit of the amendment but would like to simplify matters byinsertingbetween“of”and“education”online12,thewordRESEARCH,solines12to13wouldread:“EstablishacontinuingprogramofRESEARCHeducationandinformationtopropagatetheprimacyofhumanrights.”This is with the understanding that the research, education and information program covers the wholegrantofthethingsCommissionerRosarioBraidhasenumerated.

THE PRESIDENT.DoesCommissionerRosarioBraidaccepttheamendment?

MS. ROSARIO BRAID.IaccepttheamendmentaslongasIhaveitonrecord.

Ihaveanotheramendment,MadamPresident.

THE PRESIDENT. Letushavetheamendmentapprovedfirst.

IsthereanyobjectiontotheproposedamendmentofCommissionerRosarioBraidwhichhasbeenacceptedbythecommittee?(Silence)TheChairhearsnone;theamendment,amended,isapproved.

MS. ROSARIO BRAID.MayIreadmyotheramendment:“THECONGRESSMAYEXPANDTHESCOPEOFTHECOMMISSIONTOINCLUDECONCERNSSTATEDINTHEBILLOFRIGHTSANDOTHERSOCIAL,ECONOMICANDCULTURALRIGHTS,SHALLIDENTIFYCAUSESANDCONSEQUENCESOFVIOLATIONSOFTHESESRIGHTSANDESTABLISHAPPROPRIATEMECHANISMSANDPROGRAMSTHATSHALLPROMOTETHESERIGHTS.”



FR. BERNAS. Ithinkwewouldagainacceptthespiritoftheamendmentwiththeunderstandingthatallthosearecoveredbythepresentparagraph(5),whichisnowparagraph(6):“Performsuchotherdutiesandfunctionsasmaybefixedbylaw.”

MS. ROSARIO BRAID. Iaccept,Madampresident,as longas it is read intotherecord for thepurposeoffuturelegislation.Thankyou,MadamPresident.

MR. OPLE.MadamPresident,IthoughtIwouldliketosupportthemainideabehindsomeofthepreviousremarksofCommissionerRosarioBraidwithrespecttotheinternationaltreatyobligationsofthePhilippinesinthefiledofhumanrights.CommissionerGarciahadearlierreferredseveraltimestoourinternationaltreatyobligationsundervariousUnitedNationscovenants,thelatestofwhicharetheInternationalCovenantonCivil and Political Rights and the International Covenant on Economic and Social Rights, and, of course,rightnowthePhilippinegovernmentisarespondentinvariousforumsonhumanrightswithintheUnitedNationssystem.

Willthecommittee,inthespiritoftheremarksearliermadebyCommissionerRosarioBraid,therefore,considerjustonemorefunctionfortheHumanRightsCommission?Iproposethatbeforeparagraph(5),online14,weinsertthefollowing:“MONITORFORTHEPHILIPPINEGOVERNMENTCOMPLIANCEWITHINTERNATIONAL


TREATYOBLIGATIONSONHUMANRIGHTS,”whichmeansthattheHumanRightsCommissionthenbecomesthefocalpointfortheeffortsofthePhilippinegovernmentinseeingtoitthatCongressenactstheproperlaws by way of implementing our treaty obligations and in the exercise of this function it may actuallycalluponotheragenciesof thegovernment,especially thediplomatic service, to rendersupport to thecommission.


THE PRESIDENT. WillCommissionerOplepleaserestatehisproposedamendment?

MR. OPLE. Theamendment,whichwouldnowbecomesection5, reads:“MONITORFORTHEPHILIPPINEGOVERNMENT COMPLIANCEWITH INTERNATIONALTREATY OBLIGATIONS ON HUMAN RIGHTS.”This is amonitoringfunction,butbasedonexperience,weknowhowdifficultitistorespondtothesesinternationalobligations.Veryoften,theMinistryofNationalDefensetoassembletheinformationthatwesubmittothevariousinternationalfora.

MR. GARCIA. TheamendmentcanbeacceptedbythecommitteeaslongasitisunderstoodthatitisinanindependentmonitoringofthecomplianceofthePhilippinegovernmenttointernationalstandardswhich,infact,ifIunderstanditcorrectly,isbeingdonerightnowbyindependentprivateorganizations,liketheTaskForceDetaineesandothersuchorganizations.

MR. OPLE. Yes.WhatIamsayingisthatthisisamorecongenialfocalpointforthePhilippinegovernmentespeciallyforprivateorganizationsthatdocollaborateinputtingtogethertheinformationthatwesubmitto international fora includingthehumanrightscommissions inGenevaandotherbodies inspecializedagencies,suchastheCommitteeofApplicationofStandardsintheInternationalLaborOrganization,whichisalsoinGenevasothatthismonitoringfunctionispartoftheindependentmandateoftheCommissiononHumanRights.

MR. GARCIA. Yes,Iaccept.Ithinkthatwouldbeacceptableandalsoitscredibility,ofcourse,ininternationalcircleswoulddependverymuchonitsindependenceandeffectivity.

MR. OPLE.Yes.ItalsohappensbasedonourexperiencethatmanyqueriesfromabroadconcerninghumanrightsinthePhilippinesaregenerallyreferredtotheMinistryofNationalDefense,whichtakesalongtimebeforeitacknowledgesthesequeries.SoifwebuildthisindependentmonitoringfunctionintotheHumanRightsCommission,Ithinkthemutualflowofinformationwillbemuchbetter.

MR. GARCIA.Yes,Ithinkso,MadamPresident.


MR. SARMIENTO. Theamendmentisaccepted,MadamPresident.

MR. OPLE. Thankyou.

THE PRESIDENT. IsthereanyobjectiontothisproposedamendmentofCommissionerOplewhichhasbeenacceptedbythecommittee?

MR. OPLE. CommissionerRosarioBraidandIarethesponsorsofthisamendment,MadamPresident.


THE PRESIDENT. CommissionerTanisrecognized.

SR. TAN.MadamPresident,Ijustwanttomakeanobservation.

If I understand it correctly, when Commissioner Sarmiento was explaining the spirit and the origin ofthis proposed commission, it was supposed to be a modest commission which should give immediatereliefandactiononcasesofhumanrightsviolationsespecially for the“indigent”whichwaschangedto“underprivileged.”Butnowwearebecomingimmodest.Wehaveresearch,wehaveculturalrights,andnowwehavetotakecareofinternationaltreatiesonhumanrights.Iamjustafraidthatthecommissionwillhavenotimetotakecareoftheindividualviolationsofhumanrights.

MR. OPLE.IappreciatethepointmadebyCommissionerTan,whichisaverygoodprecautionabouttheHuman Rights Commission getting overextended right from the start. But I think the research functionalreadybuiltintothecommissionisverycompatiblewiththismonitoringfunction,andIthinkthisreallymeansthatthreeorfourpeoplecombinedintoamodestsectioncantakecareofthismonitoringfunctionwithhighlydisappropriatebenefitstothecountry,MadamPresident.



MS. ROSARIO BRAID. If I may add to what Commissioner Ople said, these functions could be linked orrelatedtoexistingresearchinstitutions.Asmallunitwithinthecommissioncanidentifytheproblemareasandcanlinktheseareasasconcernsofexistingresearchinstitutions,liketheUP.Soitreallywillnotmeanconsiderableoverheadcosts.Theywillmonitorandidentifytheproblemareasandsuggestthemforresearchbyothermoreestablishedresearchbodies.

Thankyou.

MS. AQUINO. MadamPresident,justonecomment.



MS. AQUINO. After all the amendments have been approved and with the very liberal posture of thecommittee in terms of the spiritual endowments of the article, do we still want to be confined to thedefinitionofthiscommissionasanadministrativebody?Surely,wemustprovidesomekindofaconceptualcohesionbetweenthepowersandthenatureofthecommission.

MR. SARMIENTO.IthinkCommissionerAquinoisnowaskingaboutthenatureoftheCommissiononHumanRightsbecausepreviouslywesaiditwaspurelyanadministrativebody.Butbecauseofitsnewfunctions,ithasacquiredanewfeature,anewcharacter,soitisnowaquasi-judicialbody.

MS. AQUINO. Sothiswouldnecessarily requirea readjustment inthe functionsandtheconceptsof thecommission.


MR. SARMIENTO.MadamPresident,consideringtheadjustmentswemade,thenewpowersweadded,thecommissionwillnolongerbeapurelyadministrativebody;itwillbeaquasi-judicialbody.

MS. AQUINO. Thankyou,MadamPresident.

MR. OPLE.MadamPresident,aquasi-judicialbodystillbelongstothegenusofadministrativebodies.

Thankyou.

THE PRESIDENT.We are now ready to vote on this Ople amendment which has been accepted by thecommittee.Isthereanyobjection?(Silence)TheChairhearsnone;theamendmentisapproved.

REV. RIGOS. MadamPresident,weaskthatCommissionerDavideberecognized.


MR. DAVIDE. Thankyou,MadamPresident.Thefirstamendment isontheoriginalSection2 (5), line13,whichistosubstitutetheword“propagate”with“ENHANCE.”




MR. DAVIDE. StillonSection2,butbeforeparagraph(5),Iproposetoinsertthefollowing:“RECOMMENDTOCONGRESSEFFECTIVEMEASURESTOPROPMOTEHUMANRIGHTSANDFORCOMPENSATIONTOVICTIMS,ORTHEIRFAMILIES,OFVIOLATIONSOFHUMANRIGHTS.”

MR. NOLLEDO. Anterior amendment, Madam President. I think that should be the last section asrecommendedbyCommissionerMonsod,iftheCommissionerwouldnoteawhileago.

MR. DAVIDE. No,thisisnotthelastsection;thisisentirelydifferent.theproposalofCommissionerMonsodwasthepossibilityofextendingtheauthorityofthecommissiontoincludepracticallyallkindsofviolationsof human rights, not just civil and political rights. But this is among the functions: “RECOMMEND TOCONGRESSEFFECTIVEMEASURESTOPROMOTEHUMANRIGHTSANDFORCOMPENSATIONTOVICTIMS,ORTHEIRFAMILIES,OFVIOLATIONSOFHUMANRIGHTS.”

FR. BERNAS. Couldwehavetheamendmentagain?IthinkwehavethatintheBillofRights.

MR. DAVIDE.Thereis,buttheoneintheArticleonBillofRightsisforvictimsoftorturesandsimilarpractices.Thisonenowisbroader.

FR. BERNAS.Couldwehavetheamendmentagain.

MR. DAVIDE. It reads:“RECOMMENDTOCONGRESSEFFECTIVEMEASURESTOPROMOTEHUAMNRIGHTS


ANDFORCOMPENSATIONTOVICTIMS,ORTHEIRFAMILIES,OFVIOALTIONSOFHUMANRIGHTS.”

MR. SARMIENTO.Itisaccepted,MadamPresident.

THE PRESIDENT. Isthereanyobjection?



MR. MAAMBONG.Ithought,inmyinterpellationontheoriginalSection2(3),theanswerofCommissionerSarmientowasthewords“provideappropriatelegalmeasures”coverrecommendationstoCongressofsuchlawswhichmaybepromulgated.Whyareweprovidingthisnow,ifitisalreadycoveredbyparagraph(3)?

MR. SARMIENTO. I recall, in answer to Commissioner Maambong’s question yesterday, that I said legalmeasureswouldcover indemnificationofvictimsofhumanrightsviolations.So,possibly,wecanhaveareformulationof thesesparagraphstoaccommodatetheamendmentofCommissionerDavideformoreclarity.

FR. BERNAS. Would the Commissioner have any problem with this amendment? It makes clearer thefunctionalrecommendation.


MR. MAAMBONG.Iwouldnothave,ifitmakesclearerthefunctionalrecommendation.Iwasthinkingthatprobablythecommittee,assuggestedbyCommissionerSarmiento,couldaccommodatetheamendmentofCommissionerDaviderightintheoriginalparagraph(3),whichisnowparagraph(4),sothatwedonothavetoputinanewparagraph.Ifitcannotbedone,thenIhavenoobjectiontothisamendment.

FR. BERNAS.Theparagraph,perhaps,willgetverylong.IjusthaveonequestionofCommissionerDavideregardingcompensation.

MR. DAVIDE. Itreads:“FORCOMPENSATIONTOVICTIMS,”whichmeansthatthecommissionwillrecommendtocongressmeasurestocompensatethevictims.

FR. BERNAS.butitwillnotfixthecompensation.

MR. DAVIDE. No, itwillonly recommend.So theauthorityof thecommissionwouldnecessarily includesomeremedialmeasuresbywayof recommendation fornecessary legislationtocompensatevictimsofhumanrightsviolations.



MR. NATIVIDAD. WilltheCommissionerDavideyieldtoonequestion?


MR. DAVIDE.Gladly,MadamPresident.

MR. NATIVIDAD. IhavetheimpressionthatintheArticleonBillofRightswehavealreadyprovidedforamandatetoCongresstoprovideforavictimcompensationplanorsystemtovictimsofviolationsofhumanrights.

MR. DAVIDE.No,MadamPresident.TheprovisionontheArticleonBillofRights is limited tovictimsoftorturesandothersimilarpractices.

MR. NATIVIDAD. Buttheseareviolationsofhumanrights,MadamPresident.

MR. DAVIDE. Yes,thesearehumanrightsviolations,buttheproposalisbroader.Thetorturestheremaybeaccomplishedwhileapersonisunderdetention.

MR. NATIVIDAD. I ask this question, Madam President, because I intend to propose an amendmentto Commissioner Davide’s proposal so that it would read: “THE COMMISSION SHALL ADMINISTER THEGOVERNMENT’SVICTIMCOMPENSATIONSYSTEM,”ratherthanforthecommissiontojustrecommendnowalawwithregardtothecompensationofvictimsofhumanrights.Iproposethatthecommissionbetheonetoadministerthepaymentofvictimcompensation,becauseIalreadypresupposeinmymindthatadirectionforCongresstoprovideforsuchalawisalreadyintheArticleonBillofRights.And,therefore,inthisarticleitismuchbettertomakeonestepfartherbyprovidingthatthecommissionshouldbetheonetoadministerthevictimcompensationsystemtostrengthenitsfunctionasthehumanrightsenforcerofourcountry.Butifitisthepleasureofthecommissionthatwenowrecommendanewvictimcompensationsystem,Iwillnowinsistonthisamendment.Ithoughtthatweareready.

Madam President, the better step would be to provide that any victim compensation system shall beadministeredbythecommissionsothatitwillreinforceitsfunctions.Itwilldealdirectlywiththevictimsofhumanrightsviolationsandpaytheminaccordancewiththeavailabilityoffundsandwiththerulesthatitmightpromulgate.



FR. BERNAS. Since it is Congress which will provide for the compensation, together with the system ofcompensation,IthinkwewouldratherleaveittoCongresstodecidehowthisvictimcompensationsystemistobeadministered.atanyrate,ifCongressdecidesthatitshouldbeadministeredbythiscommission,itcanbegiventothiscommission.AndCongressmaythinkofsomeothermoreeffectiveways.

MR. NATIVIDAD. My interest here is that presently, the Ministry of National Defense and the PhilippineConstabularypaythecompensation forvictimsofhumanrightsviolations.There is thisprovision intheappropriationslaw,soIamworriedbythefactthatevenwiththisprovisioninthearticle,ifwedonotmakeaclearmessageorsignaltotheincomingCongress,itmightgivethisfunctiontotheMinistryofNationalDefense.AndIdonotseethisschematicrelationship.ItshouldbetothiscommissionbecauseIdonotwanttoleavethegapopen,wherebyweamasstheresponsibilitiestodealwiththeproblemofhumanrightsviolationsandtheninthefinalactofhelpingthemmateriallyandfinancially,CongressmightopttogiveittotheMinistryofNationalDefense.Soifthecommitteeagrees,weshouldstateclearlythatthisfunctional


areashouldbelongto the functionsandresponsibilities thatwereserve for theCommissiononHumanRights.

MR. DAVIDE. Madam President, may I say that the recommendation itself for such compensation mayprovidethatthecompensationtobeappropriatedbyCongressshallbehandledbythecommissionitself.Ithinkthatwouldbethemostlogicalstepfroanysuchrecommendationtobemadebythecommission.


MR. NATIVIDAD.HowwouldCommissionerDavideworditnow,MadamPresident?

MR. DAVIDE. It isbuilt intotheproposedpower:“RECOMMENDTOCONGRESSEFFECTIVEMEASURESTOPROMOTEHUAMNRIGHTSANDFORCOMPENSATIONTOVICTIMS,ORTHEIRFAMILIES,OFVIOALTIONSOFHUAMNRIGHTS.”Sotheveryrecommendationmayalreadycontainhowthesefundsaretobekeptandwhoshalldistributethefundstothevictimsofhumanrightsviolations.

MR. NATIVIDAD. Itdoesnotsaysointhatstatement,MadamPresident.

MR. DAVIDE. That is why in the recommendation itself the commission may, otherwise we will also bebroadeningthepowerofthecommission,includethefunctionofthetreasurer.IthinkitwouldbebestthatweleaveorwegrantgreaterflexibilitytoCongressastohowthecompensationwhichmaybelegislatedshallbedistributedorallotted.Iamsurethattherecommendationitselfwillcontain,forinstance,whoarethebeneficiaries,takingintoaccountalreadythediscoveryofviolationsofhumanrights.So,thereport,inthenatureofarecommendation,willevenenumeratehowmuchfundsshouldbeallottedandtowhomthesefundsshallbegiven.

FR. BERNAS.Itseemstome,MadamPresident,thatitisanadministrativedetailwhichweneednotputinhereandwhichcanbeprovidedforbythelawitselfprovidingforcompensation.

MR. NATIVIDAD. I submit. I just wanted to make clear that it is best that the commission handle thisfunction.

FR. BERNAS. MadamPresident,beforeCommissionerDavidereturnstohisseat,mayIbeallowedtogobacktohisamendmentonpage2,line13,whichstates“informationtoenhancetheprimacyofhumanrights.”Iproposetoaddafter“enhance,”“RESPECTFOR.”

MR. DAVIDE.Itisaccepted,MadamPresident.

THE PRESIDENT.Isthereanyobjectiontothatmodification?(Silence)TheChairhearsnone;theamendmentisapproved.

MR. JAMIR. MadamPresident.

THE PRESIDENT. CommissionerJamirisrecognized.

MR. JAMIR. MayIproposeanamendmenttothelastamendmentofCommissionerDavide.


MR. DAVIDE. Thatwouldnotbethelast;thatwouldbethelatest.

MR. JAMIR. Imean,thecurrentone.Iproposetosubstitutethelastthreewords“OFHUMANRIGHTS”withtheword“THEREOF,”becausetherearetwo“HUMANRIGHTS”already:“TOPROMOTEHUMANRIGHTSANDFORCOMPENSATIONTOVICTIMS,ANDTHEIRFAMILIES,OFVIOLATIONSOFHUMANRIGHTS.”

MR. DAVIDE. No, Madam President, because “THEREOF” would refer to just “HUMAN RIGHTS,” not tocompensation to victims of violations of human rights. If we delete that phrase and substitute it with“THEREOF,” it would have no sense because the first is promotion of human rights, and the latter iscompensationtovictimsofviolationsofhumanrights.

MR. JAMIR. Butwhatisbeingviolatedishumanrights,sotheyarebeingcompensatedforthat.

MR. DAVIDE. Thecompensationwouldbegiventothevictimsorthefamilies.

MR. JAMIR.Iamjustsuggestingthatasanamendment.iftheCommissionerdoesnotaccept,Iwillnotpressforit.

MR. DAVIDE.Thankyou.

THE PRESIDENT.Maywehaveavotenow?

CommissionerMonsodisrecognized.

MR. MONSOD. MayIjustaskaquestion.Wouldthecoverageofthehumanrightsviolationsincludeviolationsbyprivateparties?

MR. DAVIDE. Allkindsofviolationspursuanttoparagraph(1)ofthissection.

MR. MONSOD. Yes.Soherewearesayingthatregardlessofwhoperpetratedit,thevictimswouldbeentitledtoacompensationundertheCommissioner’samendments.


MR. DAVIDE.ThatwouldbesubjecttotherecommendationoftheHumanRightsCommission.IthinktheHuman Rights Commission will have to determine also the priority of what kind of violation should besubjecttoarecommendationofadequatecompensationbyCongress.

FR. BERNAS.Inotherwords,thecompensationneednotcomefromthegovernment?

MR. DAVIDE. Thatiscorrect,MadamPresident.

FR. BERNAS. Butthelawcanrequiretheguiltypartytopaythecompensation.

MR. DAVIDE.Yes.


MR. MONSOD. SothisisnotcorrespondingstrictlytothesectionintheArticleonBillofRights.

FR. BERNAS. TheprovisionontheArticleonBillofRightscontemplatesoffensescommittedbetweenthetwoprovisions.

FR. BERNAS.ButevenintheArticleonBillofRights,ifagovernmentcompensatesforoffensesofpublicofficers,thenthegovernmentcanalsocollectfromthepublicofficersthemselves.

MR. MONSOD. Yes.Thankyou,MadamPresident.

THE PRESIDENT. WillCommissionerDaviderestatehisamendmentsothatwecanputittoavote?

MR. DAVIDE.Immediatelyprecedingtheoriginalparagraph(5),betweenlines13and14,insert:“RECOMMENDTOCONGRESSEFFECTIVEMEASURESTOPROMOTEHUAMNRIGHTSANDFORCOMPENSATIONTOVICTIMS,ORTHEIRFAMILIES,OFVIOALTIONSOFHUAMNRIGHTS,”andasemicolon(;).

THE PRESIDENT. Thishasbeenacceptedbythecommittee.

Isthereanyobjection?(Silence)theChairhearsnone;theamendmentisapproved.

MR. DAVIDE. And the next, Madam President, would another paragraph to follow the amendment justapproved.itreads:“APPOINTITSOFFICIALSANDEMPLOYEESINACCORDANCEWITHLAW,”andasemicolon(;).


THE PRESIDENT.Isthereanyobjection?(Silence)TheChairhearsnone;theamendmentisapproved.

REV. RIGOS. There are other amendments, Madam President, so we ask that Commissioner Gascon berecognized.

THE PRESIDENT. CommissionerGasconisrecognized.

MR. GASCON.IhavesomeproposedadditionalparagraphtothepowersoftheHumanRightsCommission.Thefirst istoread:“TOGARNTIMMUNITYFROMPROSECUTIONTOANYPERSONWHOSETESTIMONYORWHOSEPOSSESSIONOFDOCUMENTSOROTHEREVIDENCEISNECESSARYORCONVENIENTTODETERMINETHETRUTHINANYINVESTIGATIONCONDUCTEDBYITORUNDERITSAUTHORITY.”

MR. SARMIENTO. One question, Madam President. That power is one of the powers of the existingPresidentialCommitteeonHumanRights.



MR. DAVIDE. MayIrequestthattheconsiderationoftheCommissioner’samendmentbedeferredbecauseI have a proposal to the effect that until Congress shall provide otherwise, the Presidential Committeeon Human Rights shall continue to exercise its functions in addition to the rights conferred in this new


provision.

FR.BERNAS. I think, Madam President, the purpose of this amendment is to enshrine the power in theConstitution.

MR. DAVIDE.Toinstitutionalizethispower?

FR. BERNAS. Thatisrights,sothateveniftheexistingexecutiveorderisrepealed,thepowerwillcontinue.

MR. DAVIDE.Therewillbenoconflict.

MR. GASCON.MayIknowwhatisthepositionofthecommittee.

MR. SARMIENTO. Theamendmentisaccepted,MadamPresident.


THE PRESIDENT.IsthereanyobjectiontothisproposedamendmentofCommissionerGasconwhichhasbeenacceptedbythecommittee?(Silence)TheChairhearsnone;theamendmentisapproved.

MR. GASCON. Another proposed power which is also included at present in the Executive Order No. 8,creatingthePresidentialCommitteeonHumanRights,is:“TOCALLUPONANYMINISTRY,BUREAU,OFFICEOR AGENCY FOR ASSISTANCE WHICH SHALL FORTHWITH BE FURNISHED OR ACCOMPLISHED BY SUCHGOVERNMENTUNIT.”

MR. SARMIENTO.Itisaccepted,MadamPresident.



MR. DAVIDE.MayIintroduceanamendmenttoaddafter“ASSISTANCE”thefollowing:“INTHEEXERCISEOFITSFUNCTIONS.”


THE PRESIDENT. Theamendmenthasbeenaccepted.

IsthereanyobjectiontothisproposedamendmentbyCommissionerGasconasamendedbyCommissionerDavide?(Silence)TheChairhersnone;theamendment,asamended,isapproved.

CommissionerRodrigoisrecognized.

MR. RODRIGO.ThePresidentofthePhilippineshascontroloverallministries,bureausandoffices.Wearecreatingacommissionwhichisanislandinitself,separatefromthePresident.Thisisanexceptionfromthat.AndnowwearederogatingfromthispowerofcontrolofthePresidentoverministries,bureausandoffices,andtransferringpartofthatpowertothiscommission.AmIcorrect,MadamPresident?


MR. GASCON. No,thatisnot.Itisjustintheexerciseofitsfunction.itmaybenecessaryforthecommissiontoseekassistancefromotherministriesoragenciesorbureausbutitisnottakingpowerfromthePresident.

MR. RODRIGO. Supposetheministryorbureaudoesnotcomplywiththerequest?

MR. GASCON. Frommypointofview,intheexerciseofthepowersofthecommission,itshouldcomplysothattheadvocacyforandprotectionofhumanrightswillbeassured.

MR. RODRIGO.Butsupposethebureaudirectordoesnotcomplyandsays:“Well,weareunderthePresident/LetthePresidentorderus.”Whatcanthecommissiondo?Canitcompel?

MR. SARMIENTO. IthinktheCommissioneriscorrect,MadamPresident.

FR. BERNAS.MayIoffersomethingelse.Wegivepowertothecommission,butthenthePresidenthasarighttorefuseincasethebureauorministryfeelsthatitshouldnotbedoingit.Andthen,ifthePresidentsaysitshouldnotdoit,thatistheendofit.

MR. RODRIGO. Thatistheendofit;thecommissioncannotcompel.

FR. BERNAS. Yes,MadamPresident.

MR. GASCON. As it is written now, my proposal is the power to call upon agencies, ministries, bureaus,etceteratoassist.

FR. BERNAS.OntheunderstandingthatthiscanbecountermandedbythePresident.

MR. GASCON.Yes,MadamPresident.

MR. MAAMBONG. MadamPresident.


MR. MAAMBONG. Maybe this is a parallel provision in the Article on Commission on Elections, whereit mentions“deputized, with the concurrence of the President,” and this would be more in line with thestatementofCommissionerRodrigo.SoIshouldsuggesttoCommissionerGasconthatprobablyinordernottoencounterconstitutionalroadblocks,wecouldadoptsomeformofaterminologyasthisone:“deputize,withtheconcurrenceofthePresidentorauthorize,withtheconcurrenceofthePresident.”

MR. GASCON. The committee has already accepted my amendment, and I think the suggestion of theCommissioneriswithinthejurisdictionofthecommitteenow.

MR. SARMIENTO. We are willing to accommodate the amendment of Commissioner Maambong forharmony.

MR. MAAMBONG. Itisnotanamendment.ItisjustasuggestionsothatwecanalignitwiththeprovisionintheCommissiononElectionswherethereisconcurrencebythePresident.MR.GASCON.Soitshallread:“TOCALLUPON,WITHTHECONCURRENCEOFTHEPRESIDENT,ANYMINISTRY,BUREAU…”



FR. BERNAS. Woulditnotbemoreeffectiveifwejustsay:“SUBJECTTOACOUNTERMANDORDEROFTHEPRESIDENT”?

MR. MAAMBONG. Itwillamounttothesamething.

FR. BERNAS.Inotherwords,nopriorconcurrenceofthePresidentisneeded.

MR. MAAMBONG.Yes,aslongasthereispresidentialinvolvementsothatwecandoawaywiththeobjectionofCommissionerRodrigothattheproposedpowermightbeinderogationofthepowersofthePresident.Atleast,thePresidentshouldknowonewayortheother.

MR. GASCON. May I ask the committee how it is reworded based on the comments of CommissionerRodrigo.

FR. BERNAS. It reads:“PROVIDEDTHATTHE PRESIDENT MAY COUNTERMAND.”We want to preserve thecontrolofthePresidentoverallexecutiveagencies.Ontheotherhand,wealsodonotwanttoparalyzethecommission.So,ifthePresidentfeelsthatwhatthecommissionisaskingshouldnotbedone,thenhecangivethenecessaryordertocountermandtherequest.

MR. MAAMBONG. Inconcept,Ihavenodifficultywiththatbuttheword“COUNTERMAND”doesnotseemtosoundgood.Couldthecommitteepleaserecommendsomeotherword?

FR. BERNAS. Wewouldentertainsomethingbetter;perhaps,wecansay,“SUBJECTTOTHEPRESIDENT’SRIGHTOFREFUSAL.”

MR. MAAMBONG. Wearestillthinking,MadamPresident.

FR. BERNAS.Buttheconceptisthere.WewouldlikethePresidenttohavethelastword.

MR. MONSOD.Whydowenotjustsay,“SUBJECTTOREFUSALBYTHEPRESIDENT.”

FR. BERNAS.TheCommitteeonStylecantakecareofit.

THE PRESIDENT. WillCommissionerGasconrestatehisamendmentasmodified.

MR. GASCON. Itwouldread:“TOCALLUPONANYMINISTRY,BUREAU,OFFICEORAGENCYFORASSISTANCEINTHEEXERCISEOF ITSFUNCTIONSWHICHSHALLFORTHWITHBEFURNISHEDORACCOMPLISGHEDBYSUCHGOVERNMENTUNIT,SUBJECTTOREFUSALBYTHEPRESIDENT.”

MR. DAVIDE.MadamPresident, it isafactthatrightnowwehavesucha law.Soitcouldbeadequatelyprovidedbylaw,butifthereisaneedtoinstitutionalizethisparticularpower,canwenotjustsimplysay:REQUESTTHEASSITANCEOFANYMINISTRY,OFFICEORAGENCYINTHEEXERCISEOFITSFUNCTIONS?Itmaybearequest,butIamsurethatnoagencywillrejectordecline.

MR. GASCON. Sowewilldeletetheproposal“SUBJECTTO.”


MR. DAVIDE.Wedelete“REQUEST”and“AGENCY.”

FR. BERNAS. Thentheunderstandingisthatthatrequestcanbedeclined.

MR. GASCON.Whatisthepositionofthecommitteewhichhasalreadyacceptedmyamendment?

FR. BERNAS. Ithinkwecanrelyontheprestigeofthecommission,andalsoitwouldbepoliticallycostlyforthePresidenttodeclinetherequestofthecommission.

MR. MAAMBONG. Madam President, I think that would be a good compromise considering that, if thebureauorofficerequestedwillcomply,wecanpresumeregularityoftheperformanceorthefunctionsofitsoffice,whichmeansthatitmusthavetheclearancefromtheOfficeofthePresident.SoIthinkitisagoodcompromise.


THE PRESIDENT. Is there any objection to this proposed amendment, as amended? (Silence)The Chairhearsnone;theamendment,asamended,isapproved.

REV. RIGOS. MadamPresident,weaskthatCommissionerdivideberecognized.


MR. DAVIDE. Madampresident,thiswillbeaproposedSection3,whichwillreadasfollows:“THECOMMISSIONSHALLENJOYFISCALAUTONOMYANDITSMEMBERSSHALLBESUBJECTTOTHESAMEDISQUALIFICATIONSANDDISABILITIESASMEMBERSOFTHECONSTITUTIONALCOMMISSIONS.”

MR. SARMIENTO. MayIaskCommissionerMonsodtocommentonthatamendment.


MR. MONSOD. Madam President, we may be limiting the members of the commission too much bycomparingthemtomembersofotherconstitutionalcommissions,becauseit ispossiblethattheycouldalsobeworkingpart-timeortheymaybeofadifferentdiscipline.Perhaps,weshouldleavethemattertoCongress,justlikethemembersoftheMonetaryBoard.Butthefiscalautonomyisoneofthefeaturesthatthecommitteewantstoinstall.

FR. BERNAS. Couldweconsider“FISCALAUTONOMY”separately?

MR. DAVIDE.Iwilldelete“FISCALAUTONOMY.”

FR. BERNAS.No,consideritseparately.

MR. DAVIDE. Yes.Onthematterofthedisqualificationanddisabilitiesofthemembersofthecommission,wearenotputtingthemonthesamelevelwiththemembersoftheothercommissions.Itcannotbesaidthattheywouldbeservingpart-time.Weprovideforadefiniteterm-onewillserveforsevenyears, the


secondforfiveandthethirdforthreeyears-thiswoulddemandfull-timework.Andifitwouldnotbefull-time,wewilldilutereallythespecialplacethewehaveallocatedforthem.ItisaCommissiononHumanRights.

FR. BERNAS. MadamPresident,couldwedeferconsiderationofthatamendmentuntilafterweconsiderSection1?

MR. DAVIDE.Iwouldbewillingtodeferbecausetheremightbesomechangesinthematterofthecreationandthecompositionofthecommission.


MR. MAAMBONG. MadamPresident,Ijustwanttoinquirewhetherornotthatproposedprovisiononfiscalautonomyhasbeenaccepted.

FR. BERNAS. Wearenotsoclearonthestatusofthat.Wehaveaskedthatitbeseparatedfromdisqualifications,andtheproponentwasagreeabletoseparatingit.Soitisneitherdeadnoralivenow.

MR. MAAMBONG.ItappearstomethattheamendmentofCommissionerDavideisthatthecommissionshallenjoyfiscalautonomy. Iwouldjust liketoadvanceanamendmenttothatamendmentbydeletingthat portion and just say: “THE APPOVED ANNUAL APPROPRIATION FOR THE COMMISSION SHALL BEAUTOMATICALLY AND REGULARLY…” This would be in line with the provision on the constitutionalcommissions.ButIunderstandthatwillbetakenuplater.

Thankyou.

FR. BERNAS. Perhaps,wecangotothecompositionoftheofficenow,unlesswehavemoretodiscussonpowersandfunctions.

MR. NOLLEDO. I think my proposed amendment should also pertain to the powers of the commission.This should appear as section 3, Madam President, as recommended by Commissioner Monsod whenI was interpellated by him in connection with my amendment authorizing the Commission on HumanRightstofixthecasesthatshouldfallwithinitsjurisdiction.Itreads:“CONGRESSSHALLPROVIDEFORTHECASES OFVIOLATIONS OF HUMAN RIGHTSTHAT SHOULD FALLWITHINTHE ECLUSIVE JURISDICTION OFTHECOMMISSIONONHUMANRIGHTS.”AccordingtoCommissionerMonsod,thereshouldbesomepointsof reference to guide Congress in fixing the jurisdiction of the Commission on Human Rights; namely,1) the pertinent provisions of the Article on Bill of Rights, 2) the pertinent provisions of the UniversalDeclarationofHumanRightsand3)theanswersofthechairmanandmembersoftheCommittee,especiallyCommissioners Sarmiento and Garcia, to the interpellations of Commissioner Bengzon. According toCommissionerMonsod,theothermembersofthecommitteeapparentlyconcurredwiththesuggestionthatthereshouldbeaprovisionintheTransitoryProvisionsthatpendingactiononthepartofCongress,thepresentlyconstitutedCommitteeonHumanRightsshallcontinuetofunction.SoIwouldliketoknowthereactionofthecommittee.


ADJOURNMENTOFSESSION


REV. RIGOS. MadamPresident,weaskthatweadjournuntiltomorrowatnine-thirtyinthemorning.

THE PRESIDENT. Is there any objection that we adjourn until tomorrow at nine-thirty in the morning?(Silence)TheChairhearsnone;thesessionisadjourneduntiltomorrowatnine-thirtyinthemorning.

It was 5:13 p.m.

THURSDAY, AUGUST 28, 1986 4

CONSIDERATIONOFPROPOSEDRESOLUTIONNO.539

(ArticleontheConstitutionalCommissiononHumanRights)Continuation

PERIODOFAMENMENTS

MR. RAMA.ImovethatwecontinuetheconsiderationofCommitteeReportNo.37onProposedResolutionNo.539THE PRESIDENT.Isthereanyobjection?(Silence)TheChairhearsnone;themotionisapproved.

Thehonorablemembersofthecommittee,CommissionersFoz,Monsod,Sarmiento,Garciaandtheothers,arerequestedtooccupythefronttable.

MR. RAMA.MadamPresident,IaskthatCommissionerNolledoberecognized.


MR. NOLLEDO. Thankyou,MadamPresident.Iwouldliketogiveashortbackgroundonwhathappenedinyesterday’ssession.IpresentedamendmenttothereportoftheCommitteeonConstitutionalCommissionsauthorizingtheCommissiononHumanRightstosetforththecasesthatshallfallwithinitsjurisdiction.TheamendmentswasobjectedtobyCommissionersBernasandMonsod.CommissionerMonsodsuggestedthatitshouldbeCongressthatshouldbeauthorizedtofixthecaseswhichshallfallwithintheexclusivejurisdictionoftheCommissiononHumanRightsandthatweshouldbeprovideintheTransitoryProvisionsthat,untilCongressshallprovideotherwise,thepresentlyconstitutedCommissiononHumanRightsshallcontinuetofunction.Andso,Ipresentedthisamendmenttothecommitteeyesterdayafternoon-anamendmentthatshouldappearasSection3ofthecommitteereportanditreadsasfollows:“CONGRESSSALLPROVIDEFORTHECASESOFVIOLATIONSOFHUMANRIGHTSTHATSHALLFALLWITHINTHEEXCLUSIVEJURISDICTIONOFTHECOMMISSIONONHUMANRIGHTS.“Wewillhaveaprovision in theTransitoryProvisionsof the1986ConstitutionauthorizingthecontinuityofthedischargedoffunctionsofthepresentlyconstitutedCommissiononHumanRights.IngivingsomeguidelinestoCongress,IstatedthatthefollowingshallbethepointsofreferencethatshallbetakenintoaccountbyCongressinfixingthejurisdictionoftheCommissiononHumanRights:thepertinent[provisionsof the Universal Declaration of Human Rights; the provisions of the International Covenant on Civil andPoliticalRights;andtheanswersofCommissionGarciaBengzonwithrespecttocasesthatshouldfallwithin


thejurisdictionoftheCommissiononHumanRights.And so, I so would like the committee to react to this proposed amendment that I am now presenting,as suggested by Commissioner Monsod and accepted by my coauthors, Commissioners Bengson andTingson.

MR. SARMIENTO.WouldtheGentlemankindlyrepeattheamendments?

MR. NOLLEDO. TheamendmentthatshouldinSection3readsasfollows:“CONGRESSSHALLPROVIDEFORTHECASESOFVIOLATIONSOFHUMANRIGHTSTHATSHALLFALLWITHINTHEEXCLUSIVEJURISDICTIONOFTHECOMMISSIONONHUMANRIGHTS.”WeagreedalsothattherewillbeaprovisionontheTRANSITORYPROVISIONSauthorizingthepresentlyconstitutedCommissiononHumanRightstocontinueexercisingitspowersandfunctionuntilotherwiseprovidedbytheCongress.


THE PRESIDENT.Pleaserestatetheamendment.

MR. NOLLEDO. Yes,MadamPresident.Theamendmentswillread:“SEC.3.CONGRESSSHALLPROVIDEFORTHECASESOFVIOLATIONSOFHUMANRIGHTSTHATSHALLFALLWITHINTHEEXCLUSIVEJURISDICTIONOFTHECOMMISSIONONHUMANRIGHTS.”ThisiscoauthoredbyCommissionersBengzonandTingson.

MR. SARMIENTO. MadamPresidenttheamendmentisaccepted.

MR. MONSOD.WeareacceptingitwiththemanifestationthatwillbeacomplementaryprovisionintheTransitoryProvisions.


THE PRESIDENT. Arethereanycomments?CommissionerPadillaisrecognized.

MR. PADILLA. Willthedistinguishedproponentyieldtoafewquestion.

MR. NOLLEDO.Gladly,MadamPresident.

THE PRESIDENT.IhearthattheproposedSection3mentionsviolationsofhumanrightswithintheexclusivejurisdictionofthecommission.DoestheGentlemanrealizethattheBillofRights,whichguaranteeshumanrightsandtheprotectionofwhichistheconcernoftheentirenation,shouldbetheconcernoftheentiregovernmentmachineryincludingthelawenforcementagenciesandtheeffectiveadministrationofjusticetoarrest,prosecuteandpunishtheguilty?

MR. NOLLEDO. IagreewiththeVice-Presidentbutthewords“EXCLUSIVEJURISDICTION”areusedinthe


lightofthefunctionsoftheCommissiononHumanRightswhichareinvestigativeandrecommendatory.Wedonotdoawaywiththeenforcementofcivilandpoliticalrightsbyotheragenciesofthegovernmentinappropriatecases.

MR. PADILLA.No,wearenottalkingofcivil,politicalorwhattheysometimescalleconomicandculturalrights;theyarehumanrights.Ifthiscommissionisonlyinvestigativeandrecommendatory,itmusthaveaseffectivearmsthelawenforcementagencies, includingtheprosecutionarmofthegovernmentandtheprosecution,trialandjudgmenttoberenderedbythecompetentcourts.Whyshouldwemention“EXCLUSIVEJURISDCTION“asiftheotherbranchesofgovernment,particularlythejudiciaryandtheexecutive,andnottoexclusivethelegislative,shouldhavenotonlyjurisdictionbutmustimplementtheprotectionofhumanrightsand,therefore,preventandpunishthoseviolatorsofhumanrights?

MR. NOLLEDO.InthelightoftheVice-President’sobservationsandtoavoidsomeconfusion,Iwillrecommendtothecommitteethatwetalkofjurisdictionhere,wearetalkingofcasesthatcanbeinvestigatedbytheCommissiononHumanRightsandinrelationtowhichappropriaterecommendationmaybegivenbytheCommissiononHumanRights.

MR. PADILLA. Thereisnoquestionaboutthecommissionhavingtheauthoritytoinvestigateandrecommendbutthemoreimportantthingisfortheseviolatorsofhumanrightstobearrested,prosecuted,triedandconvicted,andthiscannotbedonebythecommission.Ithastorelyontheotherbranchesofgovernmentparticularlythelawofenforcementagencies-andaneffectiveadministrationofjusticetobeadministeredbythetrialcourtsuptotheSupremeCourt.

MR. NOLLEDO. Yes,IagreewiththeGentleman.ThatiswhyIamfavorofdeletingtheword“EXCLUSIVE”.

MR. PADILLA. TheGentleman’samendmentstartswith“CONGRESSSHALLPROVIDEFORTHECASES.”WhyshouldCongressthedutytospecifyprovideasifweareviolations?Weallknowwhathumanrightsstandfor; theseareprovideandguaranteedbytheBillofRights.WedonothavetotellCongress,“provideorspecifythevariousviolations.”

MR. NOLLEDO. TheVice-PresidentwillnoticethatinprevioussessionsofourCommissiononHumanRights.AndheaskedseveralquestionthatwillindicatethatprobablyallcasesofviolationsintheRevisedPenalCode,evenmaltreatmentofchildren,etcetera,mayfallunderthejurisdictiontheCommissiononHumanRights.ItisonthebasisoftheseinterpellationsbyCommissionerBengzonthatthecommitteefelttherewasaneedtospecifythecasesthatcanbeinvestigatedbytheCommissiononHumanRights.


MR. PADILLA.Thedangerinspecifyingorenumeratingisthatitmightmeantheexclusiveofothersnotspecified or enumerated under that basic principle of inclusio unius, exclusio alterius. I think it is notnecessaryand,infact,itisevendangeroustolimitthefunctionsofthecommission.

MR. NOLLEDO.WedonotprecludeCongressfromstatingthattheviolationsofhumanrightsthatmayfallunderthejurisdictionofthecommissionshallincludebutarenotlimitedtothefollowing,becauseifonewillreallystudytheprovisionsoftheUniversalDeclarationofHumanRightsintheBillofRights,practicallyallconceivableviolationsmayfallunderthejurisdictionoftheCommissiononHumanRights.


MR. PADILLA. Thatispreciselymypoint.TheBillofRightsmentionsmanyhumanrights,includingtherightsofapersontoliberty,property,dueprocess,equalprotection,etcetera.WhyshouldwerequireCongresstospecifythecases?Thesearethetwoproblems.

MR. NOLLEDO.CommissionerMonsodwouldlikeexplainfurther,MadamPresident.

MR. MONSOD. MadamPresident,thingsmightbeclarifiedifweputthisinthecontextofthedeliberationsyesterday.Duringtheinterpellationsyesterday,itwastheintentofthecommitteethatthecommissionwouldhaveverymodestobjectivesbecausetherewerecertainconcreteandimmediatemattersthatneededtobeaddressed.WhileaconstitutionalcommissionthatweseehasahorizonwiderthanthepresentfunctionsofthePresidentCommitteeonHumanRights,theobjectivesnowofthecommissionwouldbemodest.So,perhaps,wecantryplacethis inthecontextofthisprovision, if it isallrightwiththeCommissioner.Wewantedacatch-allprovisionsothatovertime,thecommission’sfunctionscouldbeenlarged,ifindeedwecometothepointwherethereislessproblemonthepoliticalandcivilrightsthatarenowthesubjectofthePresidentCommitteeonHumanRights.Thatwasthepurposeofsuggestingacatch-allphrase.Butthecatch-allphrase,as Iunderstandit fromCommissionerPadilla,mighthavetwoproblems.Oneistheproblemoftheword“EXCLUSIVE”andtheotheristhatCongressmightunnecessarilyexpandthescopeofthecommissionbeyonditsintendedmodestobjectivesatthepresent.So,wewerewonderingifwecouldputthephrase“INACCORDANCEWITHTHEPRIORITYRECOMMENDATIONSOFTHECOMMISSION”WHICHwouldtieintheproposedTransitoryProvision.Werespecttotheword“EXCLUSIVE,”thecommitteethathasacceptedtheamendmentisnotinflexibleastoitsusebecauseCommissionerPadilla’spointsarealsowelltaken.

MR. NOLLEDO. Madam President, I understand Commissioner de los Reyes is intending to amend theamendment.

MR. DE LOS REYES.MadamPresident,mayIseekrecognition?

MR. MONSOD.Isitacceptableifweput“INACCORDANCEWITHTHEPRIORITYRECOMMENDATIONSOFTHECOMMISSION”?

MR. NOLLEDO.Yes,itisacceptabletome,MadamPresident.

MR. MONSOD. Thankyou.

MR. NOLLEDO. Andthenwedeletetheword“EXCLUSIVE.”


MR. DE LOS REYES. MadamPresident.


MR. DE LOS REYES. AndmayIofferanamendmentofCommissionerNolledothatinsteadofusingtheword“JURISDICTION”whichmightbeconfusedwiththe jurisdictionoftheregional trialcourts, themunicipalcourts,weput“AUTHORITY”Ithinkthatwillbeamoreappropriatetermindefiningthescopeoftheworkof


thecommission.IsthatacceptabletoCommissionerNolledo?

MR.NOLLEDO.IwouldliketoconsultthecommitteebecauseifweaccepttheamendmentofCommissionerdelosReyes,moreorlesstheamendmentwillreadasfollows:“CONGRESSSHALLPROVIDEFORTHECASESOFVIOLATIONSOFHUMANRIGHTSTHATSHALLFALLWITHINTHEAUTHORITYOFTHECOMMISSIONONHUMANRIGHTSTOINVESTIGATE.“Willthecommitteebeamenable?

MR. SARMIENTO. We will take into account the priorities recommended by the Human RightsCommission.

MR. DE LOS REYES.So,itwillbe“AUTHORITY”insteadof“JURISDICTION.”

THE PRESIDENT. Isthatacceptable?

MR. NOLLEDO.Iwillaccepttheamendment,MadamPresident.


MR. SARMIENTO.Theamendmentisaccepted,MadamPresident.


THE PRESIDENT.CommissionerDavide,Ithink,wasahead.CommissionerDavideisrecognized.

MR. DAVIDE. MadamPresident,mayIbeallowedtointroducedanamendmenttocarrytheintentofthecommittee?“UPON RECOMMENDATION OFTHE COMMISSION, CONGRESS SHALL DEFINETHE CASES OFVIOLATIONSOFHUMANRIGHTSWHICHSHALLFALLWITHINTHEAUTHORITYOFTHECOMMISSION.”

THE PRESIDENT.Howdiditbegin?WillCommissionerDavidepleasestateitagain?

MR. DAVIDE. It will read: “UPON RECOMMENDATION OF THE COMMISSION, CONGRESS SHALL DEFINETHE CASES OF VIOLATIONS OF HUMAN RIGHTS WHICH SHALL FALL WITHIN THE AUTORITY OF THECOMMISSION.”So,weleaveittothecommissiontodeterminethecasesoverwhichitmayhaveexpandedjurisdictionorauthority,butitshouldbemandatedbyCongress.

MR. MONSOD.Maywejustaskaquestiononthis.Wemighthavea“chickenandegg“situationhere,becausetheoretically,thecommissionwillnitcomeintoexistenceuntilthelawhasbeenformulated.

MR DAVIDE.No,MadamPresident,becausewewillprovidethattheexistingPresidentialCommitteeonHumanRightsshallcontinueitsfunctionsandexercisethepowersconferredtothecommissioncreatedinthisConstitution.

SUSPENSIONOFSESSION

MR. RAMA.MadamPresident,thephrase“mandatedbyCongress”isalittlecontroversial.MayIaskfora


suspensionofthesessionforustoconfer.

THE PRESIDENT.Thesessionissuspendedforafewminutes.IrequesttheCommissionerstopleaseconferonthematter.

It was 10:46 a.m.

RESUMPTIONOFSESSION


THE PRESIDENT.Thesessionresumed.CommissionerSarmientoisrecognized.

MR. SARMIENTO. Madam President, during the suspension of the session, Commissioners Nolledo andDavidemadeareformulationoftheproposedamendment,somayweaskCommissionerDavidetosharethatreformulatedamendmentwithus.


MR. DAVIDE.Thankyou.Thisisthemodifiedproposalwhichisjointlyauthoredbythefollowing:CommissionerNolledo,theprincipalauthor,CommissionerdelosReyes,themainproponent,CommissionersRegalado,Bengzon,Monsod,Garcia,Sarmiento,andthisMember.ThenewSection3willreadasfollows:“CONGRESSMAYPROVIDEFORTOTHERCASESOFVIOLATIONSOFHUMANRIGHTSTHATSHALLFALLWITHINTHEAUTHORITYOFTHECOMMISSION,TAKINGINTOACCOUNTITSRECOMENDATION.”

MR. NOLLEDO. MadamPresident,thatisanamendmenttomyamendment.IwouldliketosaythatIamgladlyacceptingtheamendmentwiththeunderstandingthattheprimaryjurisdictionoftheCommissiononHumanRightsfoundinSection2(1)ofthecommitteereport,andwiththefurtherunderstandingthatwearegoingtoprovideintheTransitoryProvisionsthatthepresentlyconstitutedCommissiononHumanRightsshallcontinuetofunctionuntilotherwiseprovidedbytheCongress.

MR. PRESIDENT.Thankyou.

MR. DAVIDE.Theseunderstandingbearourfullaccord.

THE PRESIDENT.Whatdoesthecommitteesaysothatwecansubmitittoavote.

MR. SARMIENTO.Accepted,MadamPresident.

VOTING

THE PRESIDENT. Ithasbeenaccepted.ThishasbeenreadbyCommissionerDavide.Asmanyasareinfavorofthisparticularnewsectionpleaseraisetheirhand.(Section Members raised their hands.)


Asmanyasareabstaining,pleaseraisedtheirhand.(No Member raised his hand.)

Asmanyasareagainst,pleaseraisetheirhand.(Few Members raised their hand.)

Theresults24votesinfavor,noneagainstand2abstentions;thenewsection,asamended,isapproved.


MR. SARMIENTO. Madam President, from the committee, we wish to introduce an amendment to theamendmentproposedbythebodyyesterday.Yesterdayweadoptedthisamendmentwhichreads:“AdoptitsownPRIORITIESANDrulesofprocedure,citeforcontemptforviolationsthereofinaccordancewiththeRulesofCourtinthePhilippines.“



MR. DAVIDE. It will affect the amendment I earlier introduced. May I be allowed to modify to clearlydistinguishthetwoanddefinethescopeofeach?Iwouldproposedthatitshouldreadasfollows:“AdoptitsPRIORITIES,PROMULGATEITSOWNrulesofprocedure.”

THE PRESIDENT. Isthataccepted?

MR. SARMIENTO. Accepted,MadamPresident.

MR. DE LOS REYES.MadamPresident,mayIaskforrecognition?


MR. DE LOS REYES.Mayasksomeclarificatoryquestionsofthecommittee?


MR. DE LOS REYES. Duringthediscussionyesterday,itwasmadeclearthattheauthorityofthiscommissionshallextendnotonlytoviolationscommittedbythosewhoareworkingagainstthegovernmentforces.Whenwesay“priorities,”doesitmean,forexample,thatthecommission,inexercisingitsrighttoprioritizeitsinvestigation,caninvestigateonlyviolationscommittedbythemilitarydisregardinginthemeanwhileabusescommittedbyprivateparties?AsIunderstoodityesterday,whenCommissionerOpleintroducedhisamendment,thepurposeofplacingthereininvestigationsofviolationscommittedbythosewhorebelagainstthegovernmentandthemilitaryistostrikeabalancebetweentheinvestigationandreportingoftheresultsoftheinvestigationbythiscommission.Butwiththeword“priorities,”itcandefeatthatpurposebysimplyconcentratinginitsinvestigationonviolationsofhumanrightsbythemilitary.Sowhatistherealmeaningof“priorities”?Whyisthereaneedforthatinsertion?

MR. SARMIENTO. Asexplainedyesterday,westatedthatthecommissionshallinvestigateallformsofhuman


rightsviolationscommittedbypublicofficers,civilianandmilitaryauthoritiesandprivateparties,sotherewillbenoexception,MadamPresident.Whenwesay“priorities,”wewillleaveittothecommissiontogivepriorityastowhatformsofviolationshouldbefirstinvestigatedbecauseweexpectmassivehumanrightsviolations.So,consideringthevolumeofwork,weleaveittothecommissionastowhatformsofviolationshouldbegivenpriority.

MR. DE LOS REYES. Inthefirstplace,IthinkthereisnoneedtostatethatintheConstitution.Anycommission,Ithink,hastherighttoinvestigateallviolationsnotonthebasisofwhatitthinksshouldbeprioritizedbuton a first-come, first-served basis because if other people, for example, will complain against violationsof human rights by forces outside the military, certainly the commission’s duty should be to investigatethesethingsonafirst-come,first-servedbasisandnotonwhatitthinksshouldreceivepriority.Andforthisreason,Irespectfullyobject,whatallduerespecttotheamendmentbeingintroduced.



FR. BERNAS.Iwouldalsobeinfavorofexplicitlysayingthatthecommissioncanadoptitsownprioritiesasrecognitionofthefactthatitcanbeoverwhelmedwithcomplaintsandsoforth.Soitdoeshavetomakeachoice.Butasfaraswheretheprovisionshouldbe,mayIproposeanamendmentbytranspositionbyputtingthesubjectofprioritiesinthelastparagraphofthissection.Sothatthelastparagraphwouldread:ESTABLISHITSOWNPRIORITIESandperformsuchotherdutiesandfunctionsasmaybeprovidebylaw.”

MR. SARMIENTO.Noobjectiontotheproposedamendmentbytransposition.

THE PRESIDENT. Sowhatistobevotednow?




MR. DE CASTRO.Thankyou.IagreewiththeobservationsofCommissionerdelosReyes.Itisnotproper,Ibelieve,thattheprioritiestoberecognizedbythecommissionbeplacedintheConstitution.Inthefirstplace,whenoneisinthatoffice,heisalreadymakingupinhismindtheprioritiesofhisjob.AnditwouldbequitemisplacedifweplaceintheConstitutionwhatwillbeinthemindsofthepeopleperformingtheirwork.Certainly,whenonegoestoacertainjob,hehascertainpriorities.ButitwouldnotbegoodfortheConstitutiontostateso.Thankyou,MadamPresident.




MR. SARMIENTO.Sincewehaveacceptedtheproposedamendmentbytransposition,andsincewehavethisobjectionfromCommissionersdelosReyesanddeCastro,maywethrowtheissuetothebody?

THE PRESIDENT.Pleasereadthewordingsofthisamendedsectionorsubsectionagain.

MR. FOZ. Thisisthelastparagraph:“ESTABLISHITSOWNPRIORITISandfunctionsasmaybeFIXEDbylaw.”So the amendment actually consist of the following words:“ESTABLISH ITS OWN PRIORITIES” as the lastsubsection.

MR. DE CASTRO.MadamPresident,ifthereisavotingonthis,Imovethatthevotingbeonlyonthewording,”ESTABLISHITSOWNPRIORITIES”andnottoinclude“performsuchotherdutiesandfunctions.”

MR. FOZ. MadamPresident,IwasjustreadingthewholeprovisionandIsaidtheamendmentwouldactuallyconsistofthefollowingwords:“ESTABLISHITSOWNPRIORITIES.’

MR. CONCEPTION. MadamPresident.

THE PRESIDENT. CommissionerConceptiondesirestoberecognized.Maywehearfromhim.

MR. CONCEPTION.Thankyou,MadamPresident.Thereasonforthestatementofprioritiesisthatthecommissionwouldnotwanttocreateexpectationsonthepartsofthepublicwhichcannotbefulfilledimmediately.Thereareanumberofviolationsofhumanrightslikehunger,forinstance.Thecommissionknowsthatwhateveritdoes,itcannotdoanythingaboutthat.Thatisaquestionofeconomicdevelopment,socialconsciousnessandanumberofthings.Eveninthecaseofviolationofhumanrights,thecommissionmayhavetodeterminewhichtypeofviolation,regardlessoftheorderinwhichcomplaintshavebeenfiled,deservepreciselytoavoidcreatinganexpectationandthen there after disillusionment on the part of the public if every complaint cannot be attended soonenough,consideringthatthisisthefirsttimethataconstitutionalcommissionofthistypeisestablishedforthedefense,protection,andpromotionofhumanrights.

Ithankyou,MadamPresident.

SUSPENTIONOFSESSION

THE PRESIDENT. Maywesuspendthesessionforafewminutes.

It was 11: 50 a.m.

RESUMPTIONOFSESSION

At 12:01 p.m., the session is resumed


MR. SARMIENTO. Madam President, may ask that Commissioner Regalado, after conferring withCommissionersdelosCastro,delosReyesandDavide,berecognizedforhisamendment.


MR. REGALADO.Thankyou,MadamPresident.


MR. REGALADO. ThisisalsoincollaborationwiththeproposalsofCommissionersNatividadandGuingonabywayofanamendmenttosubparagraph2toreadasfollows:“ADIPTITSOPERATIONALGUIDELINES,RULESOFPROCEDURE,ANDCITEFORCONTEMPTFORVIOLATIONSTHEREOFINTHEPHILIPPINES.”

MayIexplain,MadamPresident?


MR. REGALADO.Theuseofthephrase“OPERATIONALGUIDELINES”isunderstoodtounderscorethefactthatinitsoperations,thecommissionshallnotresorttoanydiscriminatoryprogramsbutshouldhavetheenforcementofitspolicies,aswellasoperations,doneonthebasisofequality,parityandwithoutanyintenttoundulyputatadisadvantageaparticularsector,butalsoinconsiderationofthevolumeofworkthatmaybeencounteredbythecommission.


VOTING

THE PRESIDENT. As many as are in favor of this particular section- because this was already approvedyesterday-asamended,pleaseraisetheirhand.(Several Members raised their hand.)


Asmanyasareabstaining,pleaseraisetheirhand. (Few Members raised his hand.)

Theresultshow30votesinfavor,noneagainstand2abstentions;thesection,asamended,isapproved.

Arethereanyotherpendingamendments?

MR. RAMA. Thereisaonemore,MadamPresident.MayIaskthatCommissionerDavideberecognized.


MR. DAVIDE. Madam President, my amendment is on Section 1, but my I first seek the recognition ofCommissionerBengzon.

THE PRESIDENT. CommissionerBengzonisrecognized.

MR. BENGZON.MadamPresident,thiswillbethesecondparagraphbecausethefirstparagraphstatesthatthereshallbeanindependentCommissiononHumanRights.The second sentence shall read as follow:“THE COMMISSION SHALL BE COMPOSED OF FIVE SHALL BE


NATURAL-BORNCITIZENSOFTHEPHILIPPINESANDAMAJORITYOFWHOMSHALLBEMEMBERSOFTHEBAR.THECOMMISSIONSHALLBEPROVIDEDBYLAW.”Mayweknowthereactionofthecommittee?

MR. FOZ. MadamPresident,aftertheword“FIVE,”maywesuggestthatweputtheword“MEMBERS”?

MR. BENGZON. Yes.

MR. SARMIENTO.Accepted,MadamPresident.

MR. GUINGONA.MadamPresident.

THE PRESIDENT.Isthereanycomment?

MR. GUINGONA.Insteadofsaying“COMPOSEDOFFIVE,”wesay“COMPOSEDOFCHAIRMANANDFOURMEMBERS.”

MR. BENGZON. Weaccepttheamendment.

THE PRESIDENT.Shallwesubmitthisparticularportiontoavote.

MR. BENGZON.Yes.


MR. BENGZON. Ihaveanotherparagraph,MadamPresident.Thiscouldbeaseparatesectionoranotherparagraph depending on what the committee desires and what the Committee on Style would wish:“THECOMMISSIONSHALLENJOYFISCALAUTONOM.THEAPPROVEDANNUALAPPROPRIATIONSOFTHECOMMISSION SHALL BE AUTOMATICALLY AND REGULARLY RELEASED.” It will align this Human RightsCommissionwithothercommissionsthatwehavecreatedintheConstitutioninordertofurtherinsuretheindependentsoftheHumanRightsCommission.



MR. DAVIDE. I introducedthatparticularamendmentyesterday,but therewasaproposedmodificationpresented by Commissioner Maambong to delete the first sentence. I am in favor of the modificationpresentedearlier.So,mayIproposedthattheparticularamendmentshouldnotcarrythefirstsentence,onlythesecondsentencewhichreads:“THEAPPROVEDANNUALAPPROPRIATIONSOFTHECOMMISSIONSHALLBEAUTOMATICALLYANDREGULARLYRELEASED.”

MR. BENGZON. Why do we want to delete the sentence which says,“THE COOMMISSION SHALL ENJOYFISCALAUTONOMY”?

MR. DAVIDE.Thatwouldbeasurplusagebecausetheautonomyactuallyintendedistheautomaticreleaseofthoseappropriations.


MR. BENGZON. Ifthatisthecases,thenmaybeweshouldalsodeletesuchsentenceintheotherarticlesthatwehaveapproved.IwilljustleaveituptotheCommitteeonStyle,aslongasitisintherecordthatisthesenceoftheCommission,MadamPresident.

THE PRESIDENT.Whatdoesthecommitteesayonthispoint.

MR. SARMIENTO.Accepted,MadamPresident.WeleaveittotheCommitteeonStyle,solongastheintentisthere.

MR. BENGZON. Inotherswords,whatwearereallysayingisthatiftheCommitteeonStylefeesthatitwouldbemoreelegantanditisasurplusagetoincludethefirstsentence,thensobeitaslongasitisrecordedintheJournalthatit isthesenseoftheCommissionthattheHumanRightsCommissionwillenjoyfiscalautonomy.


MR. GUINGONA. MadamPresident.


THE PRESIDENT.CommissionerGuingonaisrecognized.

MR. GUINGONA. May I respectfully invite the attention of the honorable Commissioners that there aretwocommitteethataretaskedwiththesameworkand,therefore,referencecambemadenotonlytotheCommitteeonStylebutalsototheSponsorshipCommittee.Thankyou,MadamPresident.

MR. MONSOD.Maybeweshouldjustsaythattheminimumconditionthatthecommitteeagreestois:“THEAPPROVEDANNUALAPPROPRIATIONSOFTHECOMMISSIONSHALLBEAUTOMATICALLYANDREGULARLYRELEASED.”Thatisaminimumconditionandwejustallowthecommitteestoaddthefirstsentenceiftheywish.Butwiththesecondsentence,thesenseisalreadythere.

MR. BENGZON. Noproblem,MadamPresident.

THE PRESIDENT.Butitwasdeferred,Iunderstand,MadamPresident.Soifweapprovethisnow,thenitwillbefirmlyincluded.

THE PRESIDENT.So,willreadtheamendmentasaccepted.“THEAPPROVEDANNUALAPPRORIATIONSOFTHECOMMISSIONSHALLBEAUTOMATICALLYANDREGULARLYRELEASED.”

THE PRESIDENT. Is there any objection to this proposed amendment which has been accepted by thecommittee?




MR. PADILLA. The wording reminds me of the provisions under the judiciary and the constitutionalcommissions.Istheintentiontoelevatethepositionofthisproposedcommissionwhichisonlyinvestigativeandrecommendatorytothehighdignityofaconstitutionalcommission,aswellastheindependenceofthe judiciary,bymakingapositivestatement intheConstitutionthat itsappropriationshallbereleasedautomaticallyandsoforth?ItseemsthatthewearecomplicatingandalsoreiteratingseveralprovisionsthatwouldmakeourConstitutionnotonlytoolongbuttoocomplicated.Iwonderifthatisthepurposebecauseevenotherbodieswithsemi-judicialfunctionsdonotenjoysuchkindofconstitutionalguarantee.Itisjustaninquiry.

MR. BENGZON. It isnotsomuchthe fact thatwewant toelevate this intoaconstitutionalcommissionas it is more of an insurance that the independence of the Human Rights Commission, even though itis not considered as a constitutional commission as contemplated and as compared to the Civil ServiceCommission,theCOMELECandCOA,ismaintained.Andthisisaselegantastheothersentences.So,wesubmitthesametothebody.

MR. SARMIENTO. The proposed amendment has been accepted by the committee, but we have thisobjectionfromCommissionerPadilla.So,maywethrowtheissuetothebody?

MR. GUINGONA. Madam President, just for clarification. Does the amendment of the honorableCommissionerBengzonreferonlytothereleased?IwasthinkingthatalthoughIamverystronglyinfavorofthiscommissionandwouldgiveitoneofthetoppriorities,thereareothertopprioritiesthatwemaywanttoaddressourselvesto.Forexample,intheCommitteeonHumanResources,wewouldliketogivetopprioritytoeducation:therefore,ifthisdoesnotreferonlytoanautomaticandregularreleasebutwouldrefertothematterofprioritiesinthepreparationoftheboththebudget,thenIamafraidthatwemightalreadybecurtailingtoomuchthediscretiononthepartofboththelegislatureandtheexecutivetodeterminetheprioritiesthatshouldbegivenatagiventime.

MR. BENGZON.MadamPresident,thesentencemeanswhatitsaysanditisclear.

THE PRESIDENT. WilltheCommissionerpleaseread.

MR. BENGZON.Itonlyreferstothereleasewhichshouldbeautomaticandregular.

THE PRESIDENT. Pleasestateitagainsothatwewillbeclarifiedbeforewetakeavote.

MR. GUINGONA.Thankyou,MadamPresident.


MR. BENGZON. It will read:“THE APPROVED ANNUAL APPROPRIATIONS OFTHE COMMISSION SHALL BEAUTOMATICALLYANDREGULARLYRELEASED.”

VOTING

THE PRESIDENT.Asmanyasareinfavorifthisparticularsection,pleaseraisetheirhand.(Several Members raised their hand.)


Asmanyasareagainst,pleaseraisetheirhand. (Few Members raised their hand.)

Asmanyasareabstaining,pleaseraisetheirhand.(Two Members raised their hand.)

Theresultshow26votesinfavor,4againstand2abstentions;theamendmentisapproved.

MR. RAMA. MadamPresident, there isone lastamendmentfromCommissionerDavide. Iaskthatheberecognized.

ThiswillbethelastsentencetoSection1.Itwillread:“UNTILOTHERWISEPROVIDEDBYLAW,THEEXISTINGPRESIDENTIAL COMMITTEE ON HUMAN RIGHTS SHALL EXERCISE THE POWERS CONFERRED TO THECOMMISSIONHEREINCREATED.”

MR. MONSOD. Mayaskaquestionoftheproponent,MadamPresident?


MR. MONSOD. Justamatterofplacement.DoestheproponentbelievethatthisisbetterplacedherethanintheTransitoryProvision?

MR. DAVIDE. MadamPresident,togivestrengthtotheproposalandinordertoattainasymmetryinthematterofourrecognitionoftheNationalEconomicandDevelopmentAuthority,aswellasourrecognitionoftheMonetaryBoardintheArticleonNationalEconomy,wherethisalmostsimilarproposalappears, Ithinkthepropersitusforthismustbehere.

MR. FOZ.Onesuggestion,MadamPresident,insteadofthewords“TOTHECOMMISSION,”wesuggest“ONTHECOMMISSION.”

MR. GUINGONA. MadamPresident.

THE PRESIDENT. CommissionerGuingonaisrecognized.

MR. GUINGONA.MayIrespectfullyexpressmyviewthatthisparticularprovisionshouldbeenteredintheArticleonTransitoryProvisions.

MR. DAVIDE.Ihavealsoexpressedmyview,MadamPresident,thatintheArticleontheNationalEconomyandPatrinomy,moreparticularlyonthecreationandestablishmentbyCongressofanindependenteconomicandplanningagency,weprovidedasasecondparagraphthefollowing:“Untilotherwiseprovidedbylaw,theNationalEconomicandDevelopmentAuthorityshallbetheindependentplanningagency”;andinthematterofsecondparagraphthefollowing:“UntilotherwiseprovidedbyCongressorbylaw,theMonetaryBoardshallbethecentralmonetaryauthority.”

MR. MONSOD. MadamPresident.


MR. MONSOD. We just want to call the attention of the proponent that the National Economic and


Development Authority, the Monetary Board and the Central Bank have been established by law.ThesehavebeencreatedbyvirtueofanactofCongress.ThepresentCommitteeonHumanRightsisnotacreationofCongress.Doesthatnotmakeadifferences?

MR. DAVIDE.Itwouldnotmakeanydifferencebecauseevenifitiscreatedasacommittee,theauthoritycreating it is thePresidentofthePhilippines intheexerciseofher legislativepower.Andso,even if it iscreatedmerelybyanexecutiveorder,thatexecutiveorderpartakesofthenatureof lawbecauseit isbyvirtueoftheauthorityofthePresidenttolegislate.

Moreover,theimportanceofwhyitshouldbestatedhereisthefactthatweshouldnowwantthisparticularcommitteetoexerciseimmediatelyupontheratificationoftheConstitutiontheveryfunctionsandpowersconferredtothecommissioncreated.

MR. GUINGONA. Madam President, he desire of the honorable Commissioner that there should beimmediate implementation could also be achieve even if there is a transfer to the Article onTransitoryProvisions.Besides,myunderstandingisthatthereisamotionorarequestwhichwewillconsiderregardingthereopeningoftheArticleonNationalEconomyandPatrimony.And,perhaps,itwouldbebesttoincludealloftheseprovisionsabouttheMonetaryBoard,theTransitoryProvisions.

MR. DAVIDE. Iwillleaveittothebody,MadamPresident,insofarastheproperplaceforthisisconcerned.But,perhaps,wecanvoteontheconceptalready.So,themomentweapprovethis,thesucceedingmotionwillbethatitshouldbeplacedintheTransitoryProvisions.

THE PRESIDENT. WillCommissionerDavidepleaserepeatwhathesaidaboutthepresentCommitteeonHumanRights?


MR. DAVIDE. The entire paragraph, which may be a section in the Transitory Provisions, will read:“UNTIL OTHERWISE PROVIDED BY LAW, THE EXISTING PRESIDENTIAL COMMITTEE ON HUMAN RIGHTSSHALLCONTINUETOPERFORMITSFUNCTIONSANDSHALLEXERCISETHEPOWERSCONFERREDONTHECOMMISSIONHEREINCREATED.”

MR. MONSOD.Thecommitteeaccepts thatamendmentsubject toadecisionof thebodyon itsproperplacement.

VOTING

THE PRESIDENT.AsmanyasareinfavorofthisparticularamendmentofCommissionerDavidewhichhasbeenacceptedbythecommittee,withthereservationastoitsproperplace,pleaseraisetheirhand.(SeveralMembersraisetheirhand.)

Asmanyasareagainst,pleaseraisetheirhand. (No Member raise their hand.)

Asmanyasareabstaining,pleaseraisetheirhand. (Few Members raise their hand.)


Theresultshow29votesinfavor,noneagainstand2abstentions;thisnewamendmentisapproved.



MR. GUINGONA.RegardingthereservationmadebyCommissionerMonsod,maywedeferactiononthisuntilwedefinitelyknowwhetherornotwearereopeningtheArticleonNationalEconomyandPatrimonysowecantakeoftheseproposedtransferatthesametime?



MR. MONSOD.Webelievethattheseissuescanbehandledseparatelybecause,aswepointedout,thereisadifferencebetweenthissectionandtheothersectionsoftheArticleonNationalEconomyandPatrimonyandthatthosehavealreadybeencreatedbylaw,wheraswearetalkingofanexecutiveorderhere.

MR. GUINGONA. Then, Madam President, I respectfully move transfer this particular subsection to theArticleonTransitoryProvisions.


THE PRESIDENT.CommissionerSarmientoisrecognized.

MR. SARMIENTO.WewouldratherthrowittothebodyastowhetherthisshouldbeplacedinthisarticleorbetransposedtotheArticleonTransitoryProvisions.

VOTING

THE PRESIDENT. Asmanyasare in favorthatthisparticularamendment justapprovedbeplaced intheTransitoryProvisionsofthenewConstitution,pleaseraisetheirhand.(FewMembersraisetheirhand.)

Asmanyasareagainst,pleaseraisetheirhand.(Several Members raise their hand.)

Asmanyareabstaining,pleaseraisetheirhand. (Four Members raise their hand.)

Theresultsshow11votesinfavor,16againstand4abstention;themotionislost.

MR. DE LOS REYES.MadamPresident,parliamentaryinquiry.

MR. RAMA.CommissionerRusticodelosReyeswouldliketoberecognized,MadamPresident.


MR. DE LOS REYES.IsthisnotthefunctionoftheSponsorshipCommittee–todecidewhicharticletoplaceaspecificprovisionin?SupposewedecidenowthatitshouldbeplacedintheTransitoryProvisions,istheSponsorshipCommitteenotempoweredanymoretotransferittoanotherplace?




MR. GUINGONA.TheviewofsomeofthemembersoftheSponsorshipCommitteeisthat,withregardtomattesthathavebeendecidedonthefloor,thecommitteeshouldrespectthedecisionoftheCommissionin plenary. Of course, we are divided on this issue, but that is the view of some of the members of theSponsorshipCommitteewhereamatterhasnotbeendecided.Forexample,ifthetransferofaprovisionfromonearticletoanotherhasnotbeendecidedonthefloor,thenwehavetheprerogativetosuggestorrecommend.Butonceitisdecidedonthefloor,someofusbelievethatthereisnolongerthepowerorauthorityonthepartoftheSponsorshipCommitteetomakeanychangeorsuggestanychange.Thankyou.




MR. RAMA. Theparliamentarysituationcallsora---onthewholeSection1asamended.

MR. SARMIENTO. MadamPresident,thesectionwillread:“THEREISHEREBYCREATEDANINDEPENDENTOFFICECALLEDACOMMISSIONONHUMANRIGHTS.THECOMMISSIONSHALLCONSISTOFFIVEMEMBERSINCLUDINGTHECHAIRMANANDFOURMEMBERSALLOFWHOMSHALLBENATURAL-BORNCITIZENSOFTHEPHILPPINES,ANDAMAJORITYOFWHOMSHALLBEMEMBERSOFTHEBAR.THETERM,QUALIFICATIONANDDISABILITIESOFTHEMEMBERSSHALLBEPROVIDEDBYLAW.”

THE PRESIDENT. MayCommissionSarmientorepeatthatlastsentence.

MR. SARMIENTO.“THETERM ,QUALIFICATIONANDDISABILITIESOFTHEMEMBRSOFTHECOMMISSIONSHALLBEPROVIDEDBYLAW.”

And then, the last sentence reads,“UNTIL OTHERWISE PROVIDED BY LAW, THE EXISTING PRESIDENTIALCOMMITTEEONHUMANRIGHTSSHALLCONTINUETOPERFORMITSFUNCTIONSANDSHALLEXERCISETHEPOWERSCONFERREDONTHECOMMISSION.”

THE PRESIDENT. That is irrespective of its present membership, I suppose. I understand the presentcommitteeiscomposedofseven,whilewehavenowputfivehere.


THE PRESIDENT. So,willCommissionerSarmientoreadthewholesectionagain?

MR. SARMIENTO.Yes, Madam President,“THERE IS HEREBY CREATED AN INDEPENDENT OFFICE CALLEDCOMMISSIONONHUMANRIGHTS.


“THECOMMISSIONSHALLBEcomposedofoneChairmanANDfourMEMBERSALLWHOMshallbenatural-born citizens of the Philippines, AND A MAJORITY OFWHOM SHALL BE members of the Bar.THETERM,QUALIFICATIONANDDISABITIESOFTHEMEMBRESOFTHECOMMISSIONSHALLBEPROVIDEDBYLAW.

“THE APPROVED ANNUAL APPROPRIATIONS FOR THE COMMISSION SHALL BE AUTOMATICALLY ANDREGULARLYRELEASED.

“UNTIL OTHERWISE PROVIDED BY LAW, THE EXISTIMG PRESIDENTIAL COMMITTEE ON HUMAN RIGHTSSHALLCONTINUETOPERFORMITSFUNCTIONSANDSHALLEXERCISETHEPOWERSCONFFEREDONTHECOMMISSION.”

THE PRESIDENT.WilltheGentlemanrepeatthatlastsentence?

MR. SARMIENTO. “UNTIL OTHERWISE PROVIDED BY LAW, THE EXISTING PRESIDENTIAL COMMITTEEON HUMAN RIGHTS SHALL CONTINUETO PERFORM ITS FUNCTION AND SHALL EXERSICETHE POWERSCONFERREDONTHECOMMISSION.”

THE PRESIDENT. Yes,CommissionerBacani.

BISHOP BACANI.MadamPresident,whenwesay“CONFERREDONTHECOMMISSIONCREATEDBYTHIS…,”isitsexistencereallydefacto?

MR. SARMIENTO. Itshould“ONTHECOMMISSIONBYTHECONSTITUTION.”

BISHOP BACANI.Becauseitishereincreated?



MR. DAVIDE. The commission referred to is the Commission on Human Rights to be created in theConstitution,becausetheexistingbodyisnotacommissionbutmerelyacommittee.

BISHOP BACANI. Thankyouverymuch.

MR. SARMIENTO. To make it clear, Madam President, the amendment should read:“UNTIL OTHERWISEPROVIDED BY LAW,THE EXISTING PRESIDENTIAL COMMITTEE ON HUMAN RIGHTS SHALL CONTINUETOPERFORM ITS FUNCTIONS AND SHALL EXERCISETHE POWERS COFERRED ONTHE COMMISSION HEREINCREATED.”

VOTING

THE PRESIDENT.AsmanyasareinfavoroftheentireSection1,asreadbyCommissionSarmiento,pleaseraisetheirhand.(Several Members raised their hand.)

Asmanyasareagainst,pleaseraisetheirhand.(No Members raised his hand.)

Asmanyasareabstaining,pleaseraisetheirhand. (One Member raised his hand.)


Theresultsshow36votesinfavor,noneagainstand1abstention;Section1asamended,isapproved.

MR. RAMA.MadamPresident,ImovethatwevoteontheentireSection2,asamended.


MR. SARMIENTO.MadamPresident,Section2willread:“TheCommissiononHumanRightsshallhavethefollowing[powersandfunction:

“(1)InvestigateallformsofhumanrightsviolationsINVOLVINGCIVILANDPOLITICALRIGHTS;

“(2)ADOPTITSOPERATIONALGUIDELINESANDRULESOFPROCEDURE,ANDciteforcontemptforviolationsthereofinaccordancewiththeRulesofCourt;

“(3) Provide appropriate legal measures for the protection of human rights of all persons within thePhilippines,ASWELLASCITIZENSOFTHEPHILIPPINESRESIDINGABROAD,ANDPROVIDEFORPREVENTIVEMEASURESANDlegalaidservicesTOTHEUNDERPRIVILEGEDwhosehumanrightshavebeenviolatedorINneedOFprotection;

“(4)EXERSICEVISITORIALPOWERSOVERJAILS,PRISONS,ORDETENTIONFACILITIES;

“(5)EstablishedacontinuingprogramOFRESEARCH,educationandinformationtoENHANCERESPECTFORTHEprimacyofhumanrights;

“(6) RECOMMEND TO CONGRESS EFFECTIVE MEASURES TO PROMOTE HUMAN RIGHTS AND FORCOMPENSATIONTOVICTIMSORTHEIRFAMILIES,OFVIOLATIONSOFHUMANRIGHTS;

“(7)MONITORFORTHEPHILIPPINEGOVERNMENTCOMPLIANCEWITHINTERNATIONALTREATYOBLIGATIONSONHUMANRIGHTS;

“(8)GRANTIMMUNITYFROMPROSECUTIONTOANYPERSONSWHOSETESTIMONYORWHOSEPOSSESSIONOFDOCUMENTSOROTHEREVIDENCEISNECESSARYORCONVENIENTTODETERMINETHETRUTHINANYINVESTIGATIONCONDUCTEDBYITORUNDERITSAUTHORITY;

“(9)REQUESTTHEASSISTANTOFANYMINISTRY,BUREU,OFFICEORAGENCYINTHEPERFORMANCEOFITSFUNCTIONS;

“(10)APPOINTITSOFFICERSANDEMPLOYEESINACORDANCEWITHLAW;AND

“(11)PerformsuchotherdutiesandfunctionsasmaybePROVIDEDbylaw.”


THE PRESIDENT. CommissionerDAVIDEisrecognized.

MR. DAVIDE.Thereweretwoamendmentsearlieracceptedbythecommitteeandvoteduponfavorablyby


theCommissionwhichwerenotincorporatedinwhathasbeenread:ThefirstonSection2(1)whichsays:“ONITSOWNORONCOMPLAINTBYANYPARTY,”ANDTHESection2(10)whichsays:“APPOINTITSOFFICERSANDEMPLOYEEINACCORDANCEWITHLAW.”

MR. SARMIENTO. Wereadtheamendments,MadamPresident.



MR. PADILLA.InSection2(1),didIheartheterm“civilandrights”insteadofhumanrights?

MR. SARMIENTO.WilltheGentlemankindlyrepeathisquestion?

MR. PADILLA.IwasinquiringwhetherIheardcorrectlytheterm“civilandpoliticalrights”insteadofhumanrightsonSection2(1).

MR. SARMIENTO. Yes,MadamPresident.Letmereadthewholeparagraph:“Investigate,ONITSOWNORONCOMPLAINTBYANYPARTY,allformsofhumanrightsviolationsINVOLVINGCIVILANDPOLITICALRIGHTS.”

THE PRESIDENT. So,theGentlemanislimitinghumanrightstoviolationsofcivilandpoliticalrights.Isthattheintention?

MR. SARMIENTO.Inthissection,yes,MadamPresident.

MR. PADILLA.Idonotknowaboutthewisdomoflimitinghumanrightsonlytocivilandpoliticalrights.Infact,Idoubtwhetherpoliticalrightsareincludedstrictlyintheterm“humanrights.”

MR. SARMIENTO.MadamPresident,wehaveanothersectioncoveringthatpoint;itwillbeSection3.MayIaskCommissionerNolledotoreadSection3,hisamendment?

MR. NOLLEDO.MayIreferthebodytoCommissionerDavidewhomadethissubstituteamendment.

MR. DAVIDE.MadamPresident,Section3reads:“CONGRESSMAYPROVIDEFOROTHERCASESOFVIOLATIONSOFHUMANRIGHTSTHATSHALLFALLWITHINTHEAUTHORITYOFTHECOMMISSON,TAKINGINTOACCOUNTITSRECOMMENDATIONS.”

MR. PADILLA.MadamPresident,Idonotbelieveinthewisdomoflimitinghumanrightsviolations,underSection3(1),tocivilandpoliticalrights.




BISHOP BACANI. I have a question for clarification before we vote, Madam President.When there is anassertionoftheprimacyofhumanrights,primacyvis-a-viswhat?Wearespeakingoftheprimacyofhumanrights-primacyinrelationtowhat?“Primacy”isarelationalterm.Onemayspeakoftheprimacyoflaborinrelationtocapital,forexample.Buthereitisspokenofabsolutely.So,whatdowemeanbythat?

MR. GARCIA. Here,wearereferringtothebasichumanrightswhichareinalienable.Inotherwords,theseare constitutional guarantees that must be respected regardless of any emergency situations whichperhapsmayoccurwheresomerightscanbederogated.Asisacceptedalsoininternationalcovenantsorconventions, therearecertainsituationswheresomerightsmaybederogated,buttheyarebasicrightswhichcanneverbetakenaway,andthesearethebasicrightsthatwearerespecting.

BISHOP BACANI.Yes.Butwhenwearespeakingoftheprimacyofhumanrightshavetheprimacy.Whichamongthehumanrightshastheprimacy?Wearejustspeakingofprimacyofhumanrightstoutcourt;itisjustlikethat.

MR. GARCIA.Ingeneral,wearesayingthattheserightsarefundamentalorareimportant.Thisisthekindofideathatwewanttoputacrossinthisstatement.

BISHOP BACANI. DoestheGentlemanmeanallcivilandpoliticalrights?

MR. GARCIA.Yes,especiallythosewhichareinalienable;inotherwords,thosebelongingtotheindividual.Inotherwords,thepoweroftheState,orwhatwewouldcallreasonsofState,cannevertouchbasichumanrightswhicharegiventoeachpersoninsociety.

BISHOP BACANI. MadamPresident,wouldtheGentlemanconsidertherighttoassemblyamongthehumanrightsthathewishestoindicate?


BISHOP BACANI. Undercertaincircumstances,sucharightcanbecontrolledbytheState,canitnot?

MR. SARMIENTO. Thatiscorrect.

BISHOP BACANI. Therefore,whenwespeakoftheprimacyofhumanrightsinthatsense,itwouldnotbecorrect?

MR. SARMIENTO. Asageneralrule,MadamPresident,weshouldrespecttheprimacyofhumanrights,butthisnotmeanthatweshouldnottakeintoaccountotherprovisionsoftheConstitution.

BISHOP BACANI. Thatisit,MadamPresident.Whatisit“primacy”inrelationto?ThatiswhatIamspeakingof.

MR. SARMIENTO.MadamPresident,thesearebasicinalienablehumanrights.Weshouldnotspeakofrightsinrelationtoanything,toanypersonorentity.


BISHOP BACANI.Mydifficultisthis-pardonmeifIusereligiousterminology-whenwespeakforexample,oftheprimacyofthePope,wespeakoftheprimacyofonepersonoverothers.WhenwespeakoftheprimacyofthePresidentinthisConstitutionalCommission,wespeakofherprimacyinrelationtotheMembers.Buthere,wesimplyspeakoftheprimacyofhumanrightsinrelationtowhat?

MR. GARCIA.Theprimacyoflife,forexample,overpropertyrights.Humanrightsaretherightsthatapersonneedstobeabletosurvive,tobecalled“human,”andthesearethebasicrightsthatheisendowedwith.

BISHOP BACANI. Yes, I have no quarrel about that. Primacy in relation to what?That is my very simplequestion.Isitprimacyinrelation,forexample,totheexigenciesofdevelopment?

MR. GARCIA.Yes,definitelytootherrights.

THE PRESIDENT. MaywecallonCommissionerVillegas?Maybehewouldliketocontributesomethingtothisdiscussion.

MR. VILLEGAS. Yes. To clear up the ambiguity of words, could we say “ENHANCE RESPECT FOR THEINALIENABLENATUREOFHUMANRIGHTS,”becauseIthinkthatisthemeaningitseekstoconvey.



MS. AQUINO.Ithinkthediscussionoftheconceptsofprimacyinthecontextofitsbeingarelationconceptisatbestadiversion.Whenwespeakofarelationalconcept,itdoesnotnecessarilyhavetobeadversarial.Infact,itcanbemutuallysupportive,mutuallyreinforcingsuchas,Iunderstand,thepositionofthecommitteewhenitsays“theprimacyofhumanrights.”Wedonothavetocomparethisinahierarchyofvalues.Infact,thepositionof thecommittee is that, in thehierarchyof legalvaluesorconstitutionalmandate,humanrightstakepreeminenceoverotherconsiderationswhichmayevensupportorreinforceit.Itdoesnothavetobeadversarial.Itisnot,ofcourse,azerosum.


BISHOP BACANI.Yes.ThatiswhatIamasking.

THE PRESIDENT.HowaboutCommissionerRosarioBraid?

MS. ROSARIO BRAID.Maybe,thedifficultyofCommissionerBacanithatheneededtocomparetheconceptofhumanrightswithanothernoun.

BISHOP BACANI.Iwasreallyaskingforsomethingofthesort.

MS. ROSARIO BARID.So,ifweequatehumanrightswithindividualrights,wecouldsayprimacyofindividualrightsovercollectiverights.ThisisprobablywhatCommissionerBacaniisseekingfor.Imean,CommissionerBacaniisseekingfortheprimacyofhumanrightsoversomething.

BISHOP BACANI.Pleaseletmeexplain.Ifwespeakoftheprimacyofhumanrightswithoutanyqualification


whatsoever,Iaskpreciselyabouttherightstoassembly.Inthiscase,thatrighttoassemblyundercertaincircumstancesmayyieldtosomethingelseand,hence,itisnotshowntohaveanyprimacyatall.

MS. AQUINO.MadamPresident.


MS. AQUINO.ThewayIappreciatethedilemmaofCommissionerBacaniisthathewantstocanalizetheconceptofprimacywithinanegativerelationshipwhereinoneoffsetstheother.Itdoesnothavetobesobecausethebasicpostulateofthecommitteeisthathumanrightsareimportant,theyhavepreeminence,andinthehierarchyofvalues,theytakepriornotice.

MR. GARCIA.MadamPresident,Ithinktheissuehasbeenexplainedverywell.Thatispreciselythepointwewanttomake-thepreeminenceofhumanrights.

BISHOP BACANI.Preeminenceoverwhat?

MR. GARCIA.Political,civil,socialandeconomicrights.Wearenottryingtocompare.Wearesimplysayingthepreeminenceofhumanrights,ofthetotallyoftheserights.Thatisthesense.

BISHOP BACANI.MadamPresident,whenwespeakofthepreeminenceofsomething,itisoversomeotherthingwhichisnotnecessarilyadversarial.Iamnotsayingitisnecessarilyadversarial.Butwhenwespeakofpreeminence,itisoversomethingoroversomepersons.ThisiswhatIamjusttryingtoclarifybecauseifwespeakofthemcompletelyinthatsense.justwholesale,aswasadmittedbyCommissionerSarmiento,wecannotsimplyspeakofthepreeminenceofthisparticularhumanrightover,forexample,theexigenciesofnationalsecurityattheparticularpointintime.

MR. MONSOD. MadamPresident.


MR. MONSOD. Iwas justwondering,MadamPresident, ifwecanresolvethis inthecontextofaparallelprovisions.IfwewillrecallintheArticleonSocialJustice,wetalkedaboutCongressgivinghighestprioritytotheenactmentoflaws.Theexplanationwasthathighestprioritydosenotnecessarilymeantheexclusionofotherpriorities,butthatthisisthefirstthatshouldbetakenupbyCongress.IdonotknowifthatresolvestheissueraisedbyBishopBacani. Inthiscase,whenwesay“theprimacyofhumanrights”wemeanthehighestvaluebutitdoesnotnecessarilymeanthattherearenovaluesthatcouldbeatparwithit.

BISHOP BACANI.Yes.ButIwishtopointoutthatIamnotopposedtothis.IamonlyaskingforanexplanationsoIcanvoteintelligency.Inthisparticularcase,itwasquitewellexplainedbyCommissionerBernasthatwhenwespeaknotofthehighestpriority,thismeansitshouldbeamongthelawsthatCongresswilltacklefirst.Andthereisaparticularpointofreference.Thereisapointofrelationship.TheonlythingIamaskingforisthepointofreferencehere,especiallybecausethewordusedisreallystrongerthanhighestpriority-wearespeakingofprimacy.

THE PRESIDENT. Letusbeguidedbytheintentofthecommitteeintheuseoftheword“primacy”.Isupposethatwillsettlethewholematter.


MR. SARMIENTO.The intent of the committee, Madam President, is to stress the importance of humanrights,notprimacyofhumanrightsoveranything,buttostresstheimportanceofhumanrights.

BISHOP BACANI. So. Why do we not say “TO PROPAGATE THE GREATEST IMPORTANCE OF HUMANRIGHTS”?

MR.RAMA.MadamPresident.DoesCommissionerAzcunawishtoberecognized?

MR. AZCUNA.IyieldtoCommissionerSuarez,MadamPresident.

THE PRESIDENT. CommissionerSuarezisrecognized.

MR. SUAREZ. Thankyou.MadamPresident.

IheardCommissionerPadillaquestiontheproprietyofpracticallydefiningthesphereandscopeofhumanrightsunderSection2(1).Idonotknowifthismatterhasalreadybeentakenupinconnectionwiththequestionofjurisdiction.Thisprovisionwouldoperateagainstthejurisdictionofexitinginvestigatorybodies.Forexample,aninvestigationconductedbytheCommissiononHumanRightswouldoperatetodivestthefiscalsof jurisdictiontoinvestigatemothercaseswhichcouldalsoinvolveatthesametimeviolationsofhumanrights.


THE PRESIDENT.CommissionerSarmientoisrecognized.MR. SARMIENTO.MadamPresident,weexplainedafewdaysagothatinvestigationwillbeconductedbythe Human Rights Commission without depriving appropriate agencies of the government to conductprosecution. But the fiscal on his can also conduct a supplementary investigation of human rightsviolations.

MR. SUAREZ.Aretheynotexclusiveofeachother?

MR. SARMIENTO. Notexclusive,MadamPresident.

MR. SUAREZ.Ifaninvestigationisalreadybeingconductedbythefiscal,willthatnotoperatetodeprivethe Commission on Human Rights of jurisdiction to conduct further investigation on the human rightsaspects?

MR. SARMIENTO. OursubmissionisthatprimacywillbegiventotheinvestigationbeingconductedbytheCommissiononHumanRights.

MR. SUAREZ. Supposetherearetwoconflictingfindings-afiscalwouldsayafter investigation.“There isastrongcase”;andhereistheCommissiononHumanRightssayingafterinvestigation,“Thereisastrongcase.”Whathappensthenwithrespecttotheprosecutionoftheguiltypartyorparties?

MR. SARMIENTO. Our position, Madam President, is that all forms of human rights violations involvingcivil and political rights will be conducted by this commission to the exclusion of other agencies of thegovernment.


MR. SUAREZ.Itwillnotgofurtherthantheindictmentoftheguiltyparties?

MR. SARMIENTO.Therewillbenoindictment.Aswesaid,welimitittotheinvestigation.Theprosecutionwillbeconductedbythefiscal,bytheMinistryofJusticeoragenciesofthegovernment.

MR. SUAREZ. Madam President, if we promote the investigation to the judicial level on the assumptionthatthefiscalwouldalreadyfilethecaseafterconductingapreliminaryinvestigationandthecaseisnowpendingbeforethecourts,willthatnotservetodiveststheCommissiononHumanRightsoffurtherrighttoinvestigatethehumanrightsviolation?

MR. SARMIENTO. Ifthecasehasbeenfiledbythefiscalandisnowpendingbeforethecourts,thenthatdeprivesthecommissionoftherighttoconductitsinvestigation.Allitcandoistoassistthefiscalintheprosecutionofthesecases.

MR. SUAREZ.Wouldthatnotsubordinatewhatwecallthe-primacyofhumanrightstojudicialproceedings,MadamPresident?Ithoughtwewerefightingfortheprimacyofhumanrights.

MR. SARMIENTO. Letusclarify,MadamPresident.Wehavesaidthattheinvestigationofallformsofhumanrights violations involving civil and political rights will be conducted primarily by this commission.Theprosecutionwillbeconductedbythefiscals.

MR. SUAREZ. I see. But it is theoretically possible that the noble motivation behind the creation of theCommissiononHumanRightsmaynotbeeffectivelyexercisedthemomentacaseisfilledincourt.Canwethinkofwaysandmeanstopreventthestiflingofthisnobleprimacyofhumanrightstheory?

MR. SARMIENTO. MadamPresident,letusmakeadistinction.Theprosecutionofcaseswillbehandledbythefiscals.AllthattheCommissiononHumanRightswillundertakeistheinvestigation.Theprosecutionofallcasesinvolvinghumanrightswillnotbestiflingthatpowertoinvestigatebythecommission.Herewe should make a distinction- investigations shall be conducted by the commission; prosecution to beconductedbythefiscals.

MR. SUAREZ.ButmayIgobacktomyoriginalexample.Ifthereareconflictingfindings,whatwouldbetherecourseoftheCommissiononHumanRights inordertofurthertheprosecution inaccordancewith itsfindingswhenthefiscalsays:“Nocase,sir”?Whatarewegoingtodo?

MR. FOZ. MadamPresident,thereareremedies.TheprocedureunderourexistingrulesisforthefiscaltoconductthepreliminaryinvestigationortheprosecutoroftheMinistryofJusticewillconductthepreliminaryinvestigation.Butbeforethat,thefact-findingaspectishandledexclusivelybytheproposedCommissiononHumanRights.Inotherwords,theevidence,thematerialsaregatheredbythecommissionitself.Afterthe investigation, all evidence all the papers are referred to the fiscal’s office for the formal preliminaryinvestigation.Duringthepreliminaryinvestigation,Isupposethecommissionwillactivelyitselfbyprovidingassistancetotheaggrievedparties.Andfromthereon,ifthefiscalfilesthecaseorrefusestofilethecaseonthegroundoflackofevidence,lackofprobablecauseofprimafacieevidence,thenthereistheremedyofappealtotheMinistryofJusticetoreviewthefindingsofthefiscal.



MR. SUAREZ.ThatiscorrectfromtheproceduralstandpointbutwhathappenstothegooddecisionandfindingsoftheCommissiononHumanRightswhenitisfacedwiththefindingsofthefiscalthatthereisnoviolation?Canwenotstrengthenthisofficeoverandabovethefindingsofthefiscal?MR. FOZ.Unlesswearewillingtogranttheproposedcommissionjudicialorquasi-judicialfunctions,itwillstopshortofdoingjustthat.

MR. BENGZON. Madam President, may I request Commissioner Suarez to yield to me because this waspreciselythethrustofmyinterpellationwhenwewereintheperiodofinterpellations?

MR. SUAREZ. Gladly,MadamPresident.

MR. BENGZON.MadamPresident,thiswaspreciselymydifficultywhenweareintheperiodofinterpellations.I had envisioned possible confusion in the investigation of these human rights violations that is why Iwantedtozeroinonwhathumanrightsviolationsmean.Iwantedtosharplyfocusthejurisdictionofthecommission over human rights violation because my interpretation of this section was that the HumanRightsCommissionwouldhaveexclusivejurisdictionintheinvestigationofhumanrightsviolations.Aftertheyinvestigateandtheyfindaprimafaciecase,thentheyshouldreferthistothefiscal’soffice,andthefiscalhasnochoicebuttoprosecute.ButthewayIunderstandtheexplanationofthecommitteenowisthatthisisnotexclusive.AcomplaintgoestotheHumanRightsCommissionandfileshiscomplaint,butatthesametimehecanalsogothefiscal’sofficeandfilehiscomplaint.So,therewillbetwoagenciesinvestigatingthecaseandtheremaybetwoconflictingdecisions.WhatIunderstandwasthathumanrightsviolationswillbeexclusivelyinvestigatedbythecommission,tothegovernment,totheexclusionoftheOmbudsmanandtotheexclusionofthefiscal’soffice.

MR. FOZ.What Ihavejustexplainedreferstotheordinary interpretationoftheword“investigate”.But ifourintentionreallyistostrengthentheproposedCommissiononHumanRights,thenweshouldbeabletogiveititsinvestigatepowertoincludeanexclusivepowertoinvestigate,totheexclusionoftheordinaryprosecutoryofficesof thegovernment.ThatwouldconformtheviewsnowexpressedbyCommissionerBengzon,sothataninvestigationcompletedbythecommissionwouldnolongerbereviewedbythefiscal’sofficeortheMinistryofJustice.Oncethepapersofthecasearereceivedbythefiscal’sofficeoftheMinistryofJustice,thefiscal’sonlydutywouldbetofilethecaseincourtandprosecuteit.

SUSPENSIONOFSESSION

MR. BENGZON.MadamPresident,mayImovethatwesuspendthesessionuntiltwo-thirtythisafternoon.

THE PRESIDENT.Thesessionissuspendeduntiltwo-thirtythisafternoon.

It was 1:02 p.m.

RESUMPTIONOFSESSION



THE PRESIDENT. Theseasonisresumed.



MR. RAMA.ImovethatwecontinueconsiderationoftheArticleonHumanRights.

THE PRESIDENT.Mayweaskthehonorablemembersofthecommitteetopleasecometothefronttable?



MR. RAMA.IaskthatCommissionerBengzonberecognized.


MR. BENGZON.MadamPresident,thisisonthematterofthedifficultythatCommissionerSuarezandIhadlatethismorningjustbeforewerecessedforlunch,andthisiswithrespecttoSection2(1).Wearewillingtoleavethesentenceasis:

Investigateonitsownoroncomplaintbyanyparty,allformsofhumanrightsviolationsinvolvingcivilandpoliticalrights.

Withregardtotheinvestigativepowersofthecommission,afterdiscussingthismatterwiththecommitteeoverlunch,weagreedthattheword“investigate”wouldmeanthattheHumanRightsCommissionwillhavetheexclusivepowertoinvestigateallhumanrightsviolations.Andtherefore,wewouldliketoreadthisintheRecordandintheJournal.Shouldthecommissionfindaprimafaciecase,thenitshalltransmittheserecordstotheproperfiscal,afterreviewingonitsownthefilesofthecase,believesotherwise,thentherecordswouldautomaticallybeelevatedtotheMinisteronJusticewhowill, inturn,makethenecessaryreview.AndifthefindingsoftheMinisterofJusticeagreewiththefindingsofthecommission,aspecialprosecutorwouldthenbeappointedbytheMinisterofJusticetoprosecutethecase.If,however,thefindingsoftheMinisterofJusticewouldbeinagreementwiththefindingsofthefiscal,thenthatistheendofit.

WiththatinterpretationenteredintheRecord,thenIbelieveCommissionerSuarezandIwillbesatisfiedwiththisparticularparagraph.


MR. SARMIENTO. MadamPresident,someCommissionershaveexpressedtheirreservationswithrespecttothecommentsmadebyCommissionerBengzon.Itispossible,theysay,thattheMinistryofJusticewillnotbesupportiveofthecommission,sothatitispossiblethattheministrywilldelaythecase.Thatwoulddefeatthepurposeofthecommission.Becauseofthatreservation,wehaveformulatedasectionwhichwewouldliketosharewiththebodyfortheircomments.

MR. BENGZON.IsitasectionthatwillbeincludedintheConstitutionorwillitbejusttheinterpretationof


thissentencethatwillbereadintherecords?

MR. SARMIENTO.Thiswillbeaninterpretationofthatparagraphconcerninginvestigation.

MR. BENGZON.Canwehearitthen?

MR. SARMIENTO. “TheCommissionmaydeputizefiscalsorgovernmentprosecutors ifwarrantedbytheevidenceforthefilingofappropriatecasesincourt.”

MR. BENGZON. Does the Gentleman mean that the commission will now have the power to directlydeputizethefiscaloftheproperprovinceorcitytofilethecaseincourtshoulditfindthatthereisaprimafaciecase?


MR. BENGZON.Andunderthatinstance,thefiscalhasnochoicebuttofileandprosecutethecase?

MR. SARMIENTO.Yes.

MR. BENGZON.Whathappens if thedoesnotagree, thenthecommissioncandeputizeanycompetentpersontoprosecutethecase.

MR. BENGZON.Anypracticinglawyer,forinstance?

MR. SARMIENTO.Hecouldbeapracticinglawyer.

MR. BENGZON.LetmeconsultwithCommissionerSuarezonthat.

MR. FOZ.OrmaybeanalternativewouldbeforthecommissiontoconsulttheMinistryofJusticefortheassignmentofanotherfiscalorstateprosecutorwhomaybedeputizeforthepurpose.

MR. BENGZON. TheproblemthereisthatitisreallytheMinisterofJusticewhohascontrolandsupervisionoveralltheseprosecutionagencies.And,therefore,forustogivethisadditionalpowertothecommissionwouldbemakinganexceptiontotherule.

MR. FOZ.Butweenvisionthatthiswillnotbearegularthing,thatthedeputationwillbeanexceptionalprocedure,thatthecommissionwillbeeverycarefulinreferringorindeputizingthefiscalsorthegovernmentprosecutorandwillseetoitthatonlyinthoseinstanceswheretheevidenceisreallystrongandcanholdwaterwillthecommissionreallygoaheadwiththedeputation.

MR. BENGZON. Thatisabitvague.Inotherwords,istheGentlemantryingtosaythenthatthisproposalofhisisjustafall-backposition,andthatthegeneralprocedurewouldbetoreferthematterfirsttothefiscalandonlyintheeventthatthefiscalrefusestoprosecutewouldthecommissionthenhavetherighttodeputizeanotherfiscaloranypracticinglawyerthatwouldhavetherighttoprosecute?AmItounderstandthat,MadamPresident?

MR. FOZ. No.Itwillbeadirectactionbythecommissiontodeputizethefiscalconcernedandifthefiscalwithdrawsorrefuses,thenthecommissionmayrequesttheMinistryofJusticetoassignastateprosecutor


whichisaregularpracticebytheMinistryofJustice.Incasetheregularfiscalisnotavailableforanyreasonatallorisaccusedofbiasorprejudiceinacertaincase,thepracticeintheMinistryofJusticeisactuallytoassignastateprosecutortohandlethecaseevenifitisoutoftownorinfar-flungprovinces.

MR. BENGZON.Inotherwordsthen,IamwronginunderstandingthatundertheproposalofCommissionerFoz,thecommissioncandirectlyappointaspecialprosecutor.

MR. FOZ. No,thatisthefirststep.Thecommissionwilldirectlydeputizethefiscalconcernedandthefiscalisboundbythefilingsofthecommission.Andso,thefiscalwillfilethecaseincourtandprosecutewiththeactiveassistanceofthecommissionoritslawyers.

MR. BENGZON.Yes.Ifithappensthatthefiscaldoesnotbelieveinthefindingsofthecommission?


MR. FOZ.ThenthatisthetimeforthecommissiontorequesttheMinistryofJusticefortheassignmentofaspecialprosecutorwhomitwillalsodeputize,whomitwillalsodesignateasitsdeputyintheprosecutionofthatparticularcase.

MR. BENGZON.So,theonlydifferencebetweentheproposalofCommissionerFozandmineisthat,inmycase,therecordswillstillhavetobereviewedbytheMinisterofJustice;whileinhisincase,thereisnomoreneedfortheMinisterofJusticetoreviewbecausetheConstitutionwillgivethatrighttothecommissiontorequesttheMinisterofJusticetoimmediatelyassignaspecialprosecutor.

MR. FOZ. Yes.There is a short circuiting of the procedure so that there is a quick, speedier action on aparticularcase.

MR. BENGZON. Thatisallrightwithme.

THE PRESIDENT.TheChairbelieves, inbrief, that the CommissiononHumanRights is nowbecoming asuperbodyoverandaboveeventheMinistryofJustice.

MR. BENGSON.ThatisthereactionthatIambeginningtoconsider,MadamPresident.



MR. REGALADO.MadamPresident,isthatisalsomyconcernbecauseweseemtohaveadichotomyinthematterofprosecutorservices.Underourpresentsystemofjustice,itistheMinisterofJusticewhoisinfullchargeofallprosecutorialservicesfromwhichevennow,thespecialprosecutor,formerlytheTanodbayan,hastogethisbearingsinthematterofdeputation.Firstly,accordingtowhatIhaveheard,itisthepositionofthecommitteethatthemomenttheHumanRightsCommissionfindsaprimafaciecase-underthepresentrules,wedonotcallthataprimafaciecaseanymorenoraprobablecause,wecallthatnow“onlysufficientgroundstobelievethatacrimehasbeencommitted”underthe1985RulesofCriminalProcedure-thenitwillprosecute.ThiswasactuallytakenfromPresidential


DecreeNo.911.Whenthecase issenttothefiscal’soffice,andthistimethecommission is ineffectthecomplainingparty, thefiscalhastoproceed inaccordancewiththe1985RulesofCriminalProcedure. Ifthefiscaldiffersfromthepositionofthecommission,whichisthecomplainingbody,hecannotbeboundandbecompelledtoprosecuteeven if thefiscalbelievesthere isnoprimafaciecasebecauseafiscal isnotaministerialofficer.Thefiscalisaquasi-judicalofficerandtocompelhimtoprosecutethecase,ashasbeenexplainedinthecaseofLiwagvs.SacedoorratherSalcedovs.Liwag,woulddograveinjurytoourprosecutorialsystemofpenaljustice.Wecannotcompelapersonvestedwithdiscretionarypowerstofileandprosecuteacaseasifhewereaministeredofficer.ThathasbeenpointedoutasearlyasinthecaseofGuiaovs.Figueroaalongtimeago.Ifthefiscaldisagrees,theremedyisforthecomplainingpartytobringupthemattertotheMinisterofJustice.ThatwastheprocedureevenbeforeasexplainedbytheSupremeCourtinthecaseofAssistantProvincialFiscalofBataanvs.Dollete.ItlaterbecameP.D.No.911andnow,itispartofourRulesonCriminalProcedureadoptedin1985.Buttocompelthefiscalandbindhimbythefindingofamererobot.Thatiswhythelawhasmadesuchprovisions.However, if thecommissionwishes toavoidall the trouble ofgoing to the fiscal’soffice,andsince theythemselvescan beassistedbyaspecialprosecutor, then they canavail of the provisions of theRevisedAdministrative Code- Section 1686, for instance, provides additional counsel to assist fiscal. They canhavespecialprosecutorsassignedtothembytheMinistryofJusticewhichprosecutorswillconductthepreliminaryinvestigationandproceedtofilethecasewithouthavingtodealanymorewiththeregularorcityfiscals,provincialfiscalsasthecasemaybe.Buttoproceedonthattheorythatthefiscalsareboundbythefindingsofthecommissionandcantherebybecompelledtofileandprosecutethecase,Ithink,willdestroycompletelytheconceptoftheprosecutorialservicethatwehaveforsomanyyearsalready.

MR. SARMIENTO. MadamPresident,weareawareoftheprocedure.However,wehavethesefearsthatifelevatedtotheMinistryofJustice,theMinistryofJusticemightdelaythecaseormightdecideotherwise.

MR. REGALADO.Thenwhynothavespecialprosecutorsassignedtothecommissionitself?

MS. AQUINO.MadamPresident.


MS. AQUINO. With due respect to the position of the committee, I fully support the dissertation madeby Commissioner Regalado.There is no reason for us to feel insecure about the potency of the HumanRightsCommission.Thefactiswehavealreadyelevatedittothelevelofaconstitutionalbody.Thatbyitselfrendersitviableandpotentinimplementingandenforcingitspowerandfunctions.Itwouldbedifferentifitwereanyordinaryadministrativeorquasi-judicalbody.Butthefactthatitisaconstitutionalbodygivesitenoughmoralcompulsionsuchthatitsrulinganddecisionwillhaveaverystrongpersuasiveeffectontheprosecutorialarmofthejudiciary.Atthismomentwecannotdeprivethefiscalsoftheirdiscretionarypowerslestwedisturbtheveryessenceoftheadversarysysteminprosecution.



MR. BENGZON.MadamPresident,inviewofallthesestatements,Iwouldlikenowtohavetheissueonourinterpretationdecidedbythebody.



MR. FOZ. MadamPresident,wehaveconsultedwithseveralCommissionerswhoarefarwiserthanweinthecommittee.Weare,however,concernedwiththesadprospectsthatthefindingsofthecommissionmight just be sidelined or thrown aside by the fiscal who would not exactly agree with the findings ofthecommission.Insuchacase,anappealcouldbemadetotheMinisterofJusticefollowingtheregularprocedureonappealsfromtherulingsandresolutionsoffiscals,consideringthatifwegrantthecommissionthepowertodirectlydeputize,thefearhasbeenexpressedthatthismightdestroyexistingprovisionsoflawandexistingproceduresonthediscretionarypowerofthefiscalsinsuchmattersthatdirectlybearonhis functions.Thecommittee is thenwillingtosubscribetothe interpretationmadebythechairmanoftheSteeringCommitteeontheprovisionoftheextentandthescopeofthepoweroftheCommissiononHumanRightstoinvestigate.Thankyou.

MR. BENGZON.Thankyouverymuch.

MR. NOLLEDO.MadamPresident,Iwouldliketomakesomeimportantremarks,ifImaybepermittedbytheChair.


MR. NOLLEDO.Iunderstandthatunderthe1985RilesonCriminalProcedurewhichadoptedsomeprovisionsof P.D No.911, the fiscal does not conduct actual hearings for purpose of preliminary investigation.Thecomplainantfilesanaffidavit,togetherwithsupportingaffidavits,ofhiswitnessesandtherespondentfilescounteraffidavits.Itisonlywhenthefiscalwouldliketobeclarifiedoncertainmattersthathewillpropoundsomeclarificatoryquestion.So,MadamPresident,IfeelthattheCommissiononHumanRightsisreallyafact-findingbodyand,therefore,thereshouldbeaprovisioninthecommitteereportthat,asafact-findingbody, the duty of the fiscal to determine the existence of prima facie case should be taken over by theCommissiononHumanRights.Therefore,themomenttheCommissiononHumanRightsdeterminestheexistenceofaprimafaciecase,thereshouldbeaprovisionthatthecommissioncandeputizeanyprosecutororanyperson,anylawyerforthatmatter,toprosecutethecasebeforetheappropriatecourtofjustice.WhatImeanisthatthefiscalisdeprivedofthejurisdictiontodeterminetheexistenceofprimafaciecaseanditistheCommissiononHumanRightsthatshoulddeterminetheexistenceoftheprimafaciecase.Andwhentheexistenceofthecaseissodetermined,thecommissionshouldnotbepowerlesstodeputizeanyperson,evenafiscal,ortorequesttheMinistryofJusticetoappointafiscaltobedeputizedbythecommissiontoprosecutethecase.Thankyou.MadamPresident.

MR. RAMA.MadamPresident,IaskthatCommissionerPadillaberecognized.




MR. SARMIENTO.MadamPresident,wehaveacceptedtheinterpretationmadebyCommissionerBengzon,butwehavetheseremarksmadebycommissionerNolledo.Wewouldliketothrowtheissuetothebody.

MR. BENGZON.MadamPresident.


MR. BENGZON. Beforethebodyvotes,mayIjustrestatetheissuesothateverythingisclear.ThereweretwothingswerebroughtupbyCommissionerPadilla,oneisthisexclusivelyaspectandtheotheroneisthedeputizationaspect.Isuggestthatwetakeupthesetwoissuesonebyoneandvoteonthemoneatatime.ThefirstissueIwouldliketoputtoavoteiswhetherornottheHumanRightsCommissionwillexclusivelyinvestigatehumanrightsviolations.

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MR.PADILLA.Thankyou,MadamPresident. IheardCommissionerBengzonusetheword“exclusive,”andfromthecommittee,Iheardthatthecommission“maydeputize”fiscal.MadamPresident,underRule110ofthe1985RulesonCriminalProcedure,whichupdatedthe1940andthe1964RulesofCourt,theprosecutionofoffensesiscommencedbycomplaintorinformation.AndRule112providesforpreliminaryinvestigation.ThiscoversfeloniesnotonlyundertheRevisedPenalCodebutalsounderthespecialpenallaws,andallthosemay involveviolationsofhumanrights. forexample,apersonismurderedorthere isaholduporseriousfeloniesbuttherearesomanyothergravefelonies,lessgravefelonies,lessgraveandlightfelonies.Ourpresentsystemistohaveacomplaintfiledwiththefiscal’soffice,andthefiscal’sofficeineveryprovince,andprobablyevenineverycityandmunicipality,willconductapreliminaryinvestigationinaccordancewiththeRulesonCriminalProcedure.Therearethousands,maybehundredsofthousands,ofcasesbeingfiledalloverthecountrybutunderthisproposalallthecriminalcasesmayhavetobereferredtotheCommissiononHumanRights.howcanthecommissionundertaketheimmediatepreliminaryinvestigationleadingtothefilingofthecriminalinformationforprosecution,trialandjudgment?Wemaybedestabilizingthewholesystemofcriminalprocedureinourcountryundertheseproposalsofthecommittee,whichseemtoignorethepresentsatisfactorysituation.Theremaybeafewinstanceswherethefiscalprosecuteswhenheshouldnot,orhedoesnotprosecutewhenheshould,buttheseareexceptionalcases,andtheRulesprovidefortheaggrievedpartytofileanappealwiththeMinisterofJustice.Therearecaseswhereacomplaintoraninformationhasalreadybeenfiledincourt,andnotwithstandingtheeffortsofthefiscaltoeitherprosecuteortodismissthecase,thetrialcourtscorrectlyholdthatoncetheinformationhasbeenfiledandespeciallyaftertheaccusedhasbeenarraigned,itisnolongertheprovinceoftheprosecutingarm.Thedecisionrestsexclusivelyonthecourtsofjustice.Wecannotmaketheprosecutionofoffenseswhichinvolvethemoreimportanthumanrightsdependentontheactionofthisproposedcommission.Oursystemnowisthataprivateperson,theaggrievedparty,thepolice,theconstabulary,thepeaceorlawenforcementagencies,andevenprivateprosecutors,mayfileacomplaintleadingtoaninformationbythefiscal.Buttoprovidethatthecommissionmustfirstdeputizethefiscalsorthatthecommissionmusthavetheexclusiveauthorityorjurisdictionisnotpromoteorprotecthumanrightsnortopunishtheviolatorsofhumanrights,butmaybetoplacesomanyimpracticalobstaclesinthespeedyadministrationofjustice.


MR. PADILLA. MadamPresident,IthinkthefirstissuehasbeendecidedthismorningwhenIobjectedtothephrase“exclusive jurisdiction”or“exclusiveauthority,”andCommissionerNolledoandthecommitteesustainedtheobjectionstoexclusively.

MR. BENGZON.ThatispreciselywhyIstoodupandraisethisquestionagainbecauseduringtheperiodofinterpellationsIwasmadetounderstandthatthecommissionwillhaveexclusivejurisdictionovertheinvestigationofthesehumanrightsviolations.

SUSPENSIONOFSESSION

THE PRESIDENT.TheChairsuspendsthesessionforafewminutes.

It was 3:28 p.m.

RESUMPTIONOFSESSION



MR. RAMA. Madam President, I ask that Commissioner Sarmiento, the chairman of the committee, berecognized.


MR. SARMIENTO. Madam President, after conferring with the members of the committee, this is nowourinterpretationofSection2(1):Thecommissionshallexclusively investigateall formsofhumanrightsviolations.Thismeansthatifthereisaprimafaciecase,thecommissionwillreferittothefiscalforfiling.If the fiscal agrees to file it, then there is no problem. If the fiscal disagrees, the case will automaticallybeelevatedtotheMinistryofJustice.IftheMinistryofJusticeagreeswiththecommission’sfindings,thecasewillbeassignedtoaspecialprosecutorwhomtheMinistryofJusticewilldeputize.IftheMinistryofJustice,afterevaluationofthecase,disagreeswiththecommission,thatistheendofthecase.ThatisourinterpretationofSection2(1).



MR. DAVIDE. Justoneclarificatoryquestion. InthefirststatementgivenbyCommissionerSarmiento,heused the word“exclusive” to define“jurisdiction.” In the second reading of the interpretation, the word“exclusive”nolongerappeared.Whichshallbethecontrollingstatement?

MR. SARMIENTO. May I clarify that point, Madam President. The second statement is the controllingstatement,notthefirstone.

MR. NOLLEDO.MadamPresident,oneveryimportanceclarificatoryquestion.ThemomenttheMinisterofJusticedecidesnottofilethecase,consideringthatheisanalteregoofthePresident,IdisagreesthatthecaseisterminatedtherebecauseofthepossibilityofappealtotheOfficeofthePresident.Itisonlywhenthe



THE PRESIDENT.IwouldjustliketocalltheattentionoftheCommissionerswhetherornotallthesedifferentsubsectionsofSection2havebeenapprovedindividually,eitheryesterdayorthismorning.

Whatwearegoingtodonowvoteonthewhole.Section2withallitssubsections.IrequestCommissionerSarmientotoreadthewholeSection2.

MR. PADILLA. MadamPresident,beforethereadingofthewholeSection2,mayIsaythatthismatterbelefttotheSupremeCourtbecausethisispartofthejudicalsystem.WhywillthisCommissionnowprovideforcertainruleswhentheRulesonCriminalProcedure,aswellastheRulesofCourt,hasbeenpromulgatedbytheSupremeCourt?ThatisalreadycoveredbytheapprovedArticleontheJudiciary.


BISHOP BACANI.MadamPresident,beforethereadingofthewholeSection2,maywerequestthecommitteetolistentotheexplanationofCommissionerAquinoregardingthatprimacy,becausetheexplanationofthecommitteewasnotsoconvincingandpersuasive.IwouldliketoaskCommissionerAquinotopresenttothecommitteeforapprovalherownexplanationofit.

MR. SARMIENTO. MayIyieldtoCommissionerAquino,MadamPresident.


MS. AQUINO. I hope this will satisfy Commissioner Bacani and the committee. I think the intent of theconceptofprimacyortermsofapplicationisthatanyapparentconflictbetweentheexigenciesofthetimesandthepeople’sbasichumanrightsmustberesolvedaccordingtotheprinciplethatasocialorganizationexisttoserveandtoprotectmen,andthatitcannotclaimtoservethecommongoodifhumanrightsarenotsafeguarded.

MR. SARMIENTO.MayIproceed,MadamPresident.Section2states:“TheCommissiononHumanRightsshallhavethefollowingpowersandfunctions.

“(1) Investigate, on its own or complaint by any party, all of human rights violations involving civil andpoliticalrights;

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OfficeofthePresidentaffirmsthedecisionoftheMinisterofJusticethatthecaseterminatesthere,becausetheMinisterisunderthecontrolofthePresident.SoIhopethecommitteewillqualifyitsstatementthatthemomenttheMinisterofJusticesaysthatthereisnoprimafaciecase,wedonotprecludeanappealonthepartoftheaggrievedpartyorthecomplainttotheOfficeofthePresident.AmIright?

MR. SARMIENTO.Yes,theCommissionerisright.

MR. NOLLEDO. Thankyouverymuch.


“(2) Adopt its operational guidelines, rules of procedure and cite for contempt for violations thereof inaccordancewiththeRulesofCourt;“(3) Provide appropriate legal measures for the protection of human rights of all persons within thePhilippines,aswellascitizensifthePhilippinesresidingabroad,andprovideforpreventivemeasuresandlegalaidservicestotheunderprivilegedwhosehumanrightshavebeenviolatedorneedprotection;“(4)Exercisevisitorialpowersoverjails,prisons,ordetentionfacilities;“(5) Establish a continuing program of research, education and information to enhance respect for theprimacyofhumanrights;“(6)”RecommendtoCongresseffectivemeasurestopromotehumanrightsandforcompensationtovictimsortheirfamiliesofviolationsofhumanrights;“(7) Monitor the Philippines government’s compliance with international treaty obligations on humanrights;“(8)Grantimmunityfromprosecutiontoanypersonwhosetestimonyorwhosepossessionofdocumentsorotherevidenceisnecessaryorconvenienttodeterminethetruthinanyinvestigationconductedbyitorunderitsauthority;

“(9)Requesttheassistanceofanyministry,bureau,officeoragencyintheperformanceofitsfunctions;“(10)Appointitsofficersandemployeesinaccordancewithlaw;and“(11)Performsuchotherdutiesandfunctionsasmaybeprovidedbylaw.”

VOTING

THE PRESIDENT.AsmanyasareinfavorofthewholeSection2asreadbyCommissionerSarmiento,pleaseraisetheirhand.(Several Members raised their hand.) Asmanyasagainst,pleaseraisetheirhand.(A Member raised his hand.)Asmanyasareabstaining,pleaseraisetheirhand. (Two Members raised their hand.)

Theresultsshow3votesinfavor,1againstand2abstentions;thewholeSection2isapproved.

MR. RAMA.MadamPresident.ImovethatweclosetheperiodofamendmentsontheArticleonCommissiononHumanRights.

THE PRESIDENT. Ithinkthereisstillanothersectionforconsideration,whichisSection3.

MR. RAMA.IaskthatCommissionerSarmientoberecognized.




BISHOP BACANI. MadamPresident.Mayaskthecommitteehowthatwoulddiffersubstantiallyfromthelastfunctionofthecommissionasenumerated,whichstates:“Performsuchotherdutiesandfunctionsasmaybeprovidedbylaw.”Isnotthatthelastone?

MR. SARMIENTO.No,thisisintentofSection3,MadamPresident.Aswehavesaid,thiscommissionhasamodestattemptandthatistoinvestigateallformsofhumanrightsviolationsinvolvingcivilandpoliticalrights,butweenvisiontheinclusionofotherhumanrightslikeeconomic,socialandculturalrights.inthefuture,orastheneedarises,theCommissionmayinvestigatehumanrightsviolationsaffectingtheserights.ThisisthereasonweleaveittoCongresstoprovideforothercasesofhumanrightsviolationsupontherecommendationofthecommission.

BISHOP BACANI. But, precisely, is that not covered by the last function,“Perform such other duties andfunctionsasmaybeprovidedbylaw”?

MR. FOZ. MadamPresident,Section3isamoreparticulardirectivetoCongresstolookintothefeasibilityofprovidingthatothercasesorinstancesofhumanrightsviolationsmayalsobeinvestigatedorfallwithintheauthorityofthecommissiontoinvestigate.Ontheotherhand,Section2(11)isacatchallprovisionwhichwouldauthorizethecommissiontoperformotherfunctionsthatCongressmayassigntoit.

BISHOP BACANI. Yes,but,precisely,sinceitisacatchallprovision,IthoughthatwaswhattheCommissionermeantbythisSection3.

MR. FOZ. Yes.Butthereisnothinglikeprovidingforaspecificdirectivetocongresstolookintothefeasibilityof,perhaps,expandingtheauthorityofthecommissiontoinvestigateothercasesofhumanrightsviolations.

BISHOP BACANI. DoestheCommissionernotthinkthatSection2(11)wouldbeadequate?

MR. FOZ. IdonotthinkthatwouldbeadequatetoexpresstheconstitutionaldirectivetoCongresstomakesuchafeasibilitystudyintofurtherbroadeningthescopeoftheauthorityofthecommission.

BISHOP BACANI.Infact,tobehonestwiththeCommissioner,whenIvotedforthewholeSection2,Ithoughttheunderstandingwasthatthatlastfunction,“Performsuchotherdutiesandfunctionasmaybeprovidedbylaw,”coverswhatisnowproposedinSection3.SoIhavenoobjectiontothat.


MR. SARMIENTO.Section3saysthatCongressmayprovideforothercasesofhumanrightsviolationsthatshouldfallwithintheauthorityoftheCommissiontakingintoaccountitsrecommendations.

BISHOP BACANI.MadamPresident.


MR. FOZ.Welookatthesaidsectioninthatlight,MadamPresident.



MS. ROSARIO BRAID. IalsoaskthesamequestionaskedbyCommissionerBacanibecause Ididmakeaproposalwordedsimilarlytothateffect,andCommissionerBernassaidthatthat iscontainedinthe lastprovision under“other function.”That is the reason why I have withdrawn my proposal for Congress toexpandthefunctionsbecauseIwassatisfiedbyCommissionerBernas’replythatthatwouldbetakencareofbythelastprovision.Soifwelookatyesterday’sJournal,thatisthesameproposalImadeyesterday.

MR. SARMIENTO. Madam President, this amendment was proposed by Commissioner Nolledo and wevotedonitfavorably.SomayweaskCommissionerNolledowhatistheintentofthisproposalwhichwasapprovedbythebody.

MR. NOLLEDO. IunderstandthattheprimaryjurisdictionoftheCommissiononHumanRightsissetfourthinSection2(1),wherewetalkofcivilandpoliticalrights. IrememberCommissionerPadillaasking,“Howabouteconomicandsocialrightsorotherrights,orrightsotherthancivilandpoliticalrights?”ThatisthereasonwhyweareopeninganavenuetowardsexpandingthejurisdictionoftheCommissiononHumanRightsasprovidedforinSection3.WeleaveittoCommissiononHumanRights.



MR. PADILLA.ThestatementofCommissionerNolledomightgivethewrong impressionthat Iwasthatsatisfied with human rights. Precisely, I was questioning why he qualifies human rights involving civilor political rights. I never wanted to expand further because I am against the entire provision which issuperfluousandoverlapping.


BISHOP BACANI. MadamPresident,ifthisSection3issubmittedtoavote,itiswiththeunderstandingthatitwillbeasurplusagesincethelastprovisioninSection2alreadycoverstheprovision.

MR. SARMIENTO. Aswehaveexplainedbefore,thisisasectionthatlooksforward.Atpresentwearelimitingthejurisdictiontocivilandpoliticalrights.Theneedmayarisewhenthecommissionmustinvestigateotherhumanrightsviolationsinvolvingeconomic,socialandculturalrights.



BISHOP BACANI. Yes,buttheotherprovisionalsolooksforward.Itdoesnotlookbackward-“Performsuchotherdutiesfunctionsasmaybeprovidedbylaw.”Thatcertainlylooksforward.



MR. DAVIDE. Section3istheformulationafterthemodificationoftheNolledoproposal.MayIexplainthatthisisnotasurplusage.Thisiswithfullmeaningandimport.IfweconsiderSection2(1),wewillnoticethatthepoweristoinvestigateviolationsofhumanrightsaffectingcivilandpoliticalrights.Letusrememberthatthisisapower.Section2(5),whichwaspointedtobyCommissionerBacani,referstootherdutiesandfunctionswhichwouldnot,therefore, includethebroadeningofthepowertoinvestigateothercasesofhumanrightsviolationsIrepeat,itisnotasurplusage;itisnotrepetitious.Itseekstobroadenpreciselythepowerofthecommissionlaterbecauseitisonlystartingratherverymodestly.

MR. NOLLEDO.MadamPresident,justonestatement.IfwearetoadopttheinterpretationofCommissionerBacani,wewillbeundulyburdeningtheCommissioneronHumanRightsand,infact,wenegatethelaudablepurposesforwhichitwasestablished.

Thankyou.

MR. RAMA. MadamPresident,thebodyisnowreadytovote.

THE PRESIDENT. TheChairasksCommissionerSarmientotoreadSection3again.

MR. SARMIENTO.Section3provides:“Congressmayprovideforothercasesofhumanrightsviolationsthatshouldfallauthorityofthecommissiontakingintoaccountitsrecommendation.”

VOTING

THE PRESIDENT. Asmanyasareinfavorofthissection,pleaseraisetheirhand.(Several Members raised their hand.)

Asmanyasareagainst,pleaseraisetheirhand. (Few Members raised their hand.)

Asmanyasareabstaining,pleaseraisetheirhand.(Two Members raised their hand.)

Theresultsshow28votesinfavor,3againstand2abstaining:Section3isapproved.

MR. RAMA.MadamPresident,ImovethatweclosetheperiodofamendmentsontheArticleonHumanRightsCommission.



MR. RAMA.MadamPresident,ifthereisnoobjectionfromanyoftheCommissioners,ImovethatweapproveonSecondReadingtheArticleonCommissiononHumanRights.

MR. RODRIGO. MadamPresident.

THE PRESIDENT.CommissionerRodrigoisrecognized.

MR. RODRIGO. BeforewevoteonSecondReadingontheArticleonHumanRightsCommission,Iwouldliketopropoundafewquestions.Theobjectofmyquestionistoappriseourpeopleonwhattoexpectandwhatnottoexpectfromtheseprovisions which we are considering. I would like to premise my question by stating that this provisionregardingthecreationofaCommissiononHumanRightsisnotself-implementing.Itcallsforanimplementinglegislation,especiallyfortheappropriationofneededfundsbyCongress.AmIcorrect,MadamPresident?

MR. SARMIENTO. TheCommissioneriscorrect,MadamPresident.

MR. RODRIGO. Inthemeanwhile,whileCongresshasnotyetacted,thePresidentialCommitteeonHumanRightscontinuestofunction.And,asamatteroffact,intheTransitoryProvisions,thereisaproposaltogivetothePresidentialCommitteeonHumanRightsthepowersgiventotheCommissionHumanRights.AmIcorrect?


MR. RODRIGO. I was just imagining that, if I were a Members of Congress, and I see that we have thisPresidential Committee on Human Rights which is functioning very well, a committee with teeth whichis being backed by the President who has the control over the ministries, bureaus and offices of thegovernment,thenIwouldconsiderthisnewlyproposedcommission,whichisan“island”segregatedfromthePresident,withnoinherentpowersofitsown.

If there a Member of Congress, I would say,“Instead of appropriating money for this new and untriedcommission,whydowenotappropriatemoreforthePresidentialCommitteeonHumanRights?”SupposeCongressdoesthat,whichIthinkisaverywisemove,orCongressdoesnotpassanyimplementinglegislationtogivelifetothisproposedcommissionordoesnotappropriatebutinsteadstrengthensthePresidentialCommitteeonHumanRights,wouldCongressbeactinginaccordancewithitsconstitutionalpowersandprerogatives?



MR. SARMIENTO.MadamPresident,wehavethisprovisionapprovedbythebody,andtheConstitutionshall provide that there be an independent office for the Commission on Human Rights. So Congress isrequiredtocreatethiscommission.

MR. RODRIGO. It is already created by the Constitution. But suppose Congress does not only want toappropriatemoneyforit?InsteadofwastingthemoneyofthepeopleonthisCommissiononHumanRightswhichIlabela“papertiger,”whynotusethatmoneytostrengthenanalreadyexistingandtriedPresidentialCommitteeonHumanRights?

MR. SARMIENTO.ButtheexistingCommitteeonHumanRightsisapresidentialcreation.

MR. RODRIGO. Yes. Suppose Congress says,“All right, let us give it a congressional blessing. Instead ofappropriatingmoneyforanewanduntriedCommissiononHumanRights.”

MR. SARMIENTO.Thatisdifferent,MadamPresidential.ThisCommissionisanindependentconstitutionalbody. If Congress insists on its decision, then it will be violating the Constitution, because it mandatesCongresstocreateanindependentconstitutionalbody.

MR. RODRIGO. Suppose Congress does what I said, the Commissioner claims it would be violating theConstitutional.Butwhatcanwedoaboutit?


THE PRESIDENT.IsCommissionerRodrigothrough?

MR. RODRIGO. No,notyet,Ihavesomeotherquestions.Thismatterisveryimportant.Wemightberaisingthehopesofourpeoplebutafterwardsfrustratethem.

MR. SARMIENTO.MayIyieldtoCommissionerBernas.


FR. BERNAS.MadamPresident,thismorningweapprovedthisprovision:

Untilotherwiseprovidedby law,theexistingPresidentialCommitteeonHumanRightsshallcontinuetoperformitsfunctionandshallexercisethepowersconferredontheCommission.

TheunderstandinghereisthatupontheratificationofthisConstitution,thepresentPresidentialCommitteeonHumanRightsbecomestheHumanRightsCommissionanditbeginstoenjoythestatusoftheHumanRightsCommissionbeingcreatedbytheConstitution.ItceasestobeamerecreationofthePresident,sothatwhateverCongressappropriates,itappropriatesfortheHumanRightsCommission.

MR. RODRIGO. No, there is a distinction between the Human Rights Commission and the Presidential


CommitteeonHumanRights:Thereisabasicdifference;andthis,tome,isveryimportant.ThePresidentialCommitteeonHumanRightsisbackedupbythePresident,withallthepowersofthePresidentoverthewholeexecutivedepartmentbehind it.Ontheotherhand,theCommissiononHumanRightswhichweplantocreatebymeansofthisprovisionintheConstitutionisisolatedfromthePresident,independentofthePresidentanddoesnothaveinherentpowersofitsown.

FR. BERNAS.What Iamsaying isthatupontheratificationofthisConstitution,thatpresentPresidentialCommitteeonHumanRightsceasestobedependentontheprovision.Thatistheintentoftheparagraphweapprovedthismorning.



MR. REGALADO. MayIaskoneclarificationAccordingtoCommissionerBernas,upontheratificationofthisConstitutionthePresidentialCommitteeorHumanRights.

FR. BERNAS. Thecomposition,MadamPresident.

MR. REGALADO. Butwhatthisprovisionapprovedthismorningstatesis:”UntilotherwiseprovidedbylawtheexistingPresidentialCommitteeonHumanRightsshallcontinuetoperformitsfunctions.”

SothereisalittlegapfromthetimeoftheratificationoftheConstitutiontothetimeCongressshallhaveconvenedandhavepasseda law.WhatIwouldliketofindout iswhatwouldbethecommittee’sorthecommission’sstatusduringthatperiodbetweentheratificationoftheConstitutionanduntilsuchalawhasbeerpassedbyCongress.

FR. BERNAS.Precisely,whatIamsayingisthatupontheratificationofthisconstitution,thestatusofthepresentcommitteebecomesconstitutionalalthoughitscomposition,untilitisotherwiseprovidedbylawwillcontinuetobethewayitis.


MR. REGALADO.ThatwouldnotbethewayIwouldreadit,MadamPresident,becausethephraseuntilotherwise provided by law” qualifies that succeeding clause“shall continue to perform its functions.” Iamjustconcernedwithrespecttothiscutofforstartingpointbecause,ontheonehand,wehave,astheCommissionerhassaid,theratificationoftheConstitutionand,ontheother,thiscontinuanceoffunctionsandpowersofthepresentPresidentialCommitteeonHumanRightsuntilotherwiseprovidedbyCongress.Sohowdowereconcilethis?

MR. RODRIGO. MayIaddsomethingtowhatCommissionerRegaladosaid?

MR. DAVIDE.Pointofinformation,MadamPresident.



MR. DAVIDE. ThisisapointofinformationbecauseCommissionerRegaladodidnotreadtheentiresection.Hestoppedatmerely“exerciseitsfunctions.”Weadded-andthiswasmyamendment-“andtoexercisethefunctionsconferredonthecommissionhereincreated.”SoisveryclearthattheBernasinterpretationisthecorrectinterpretationofthatparticularamendmentwhichIintroduced.

MR. REGALADO. Wasthatanamendment?Whenwevotedthismorning,thiswastheoneIvotedfor,whichendedwiththeword“COMMISSION.”Thisistheonefurnishedusbythecommittee,endingwiththeword“Commission”andcanceling“hereincreated.”

MR. SARMIENTO. Asread,MadamPresident,weaddedthewords“hereincreated.”

BISHOP BACANI.MadamPresident, Iaskedaquestionthismorningwhichledtotheclarificationbythecommitteeandtheadditionofthewords“hereincreated.’

MR.RODRIGO. MadamPresident,letusstartfromthatpremise-thatthePresidentialCommitteeonHumanRights, as now functioning, continues to function until otherwise provided by law. Suppose Congress,instead of abolishing the Presidential Committee on Human Rights, decides to create by legislation thisPresidential Committee on Human Rights, instead of the commission provided for in the Constitution,becausethisPresidentialCommitteeonHumanRightsismoreeffective-itisbackedbythePresident-unliketheproposedcommissionwhichisanislandsegregatedfromthePresident.Ithastopleadwithfiscals;ithastoleadwithprosecutingofficers;ithasnopower;itisatoothlesscommission.Whathappensthen?CanwecompelCongresstoappropriatemoneyforthisifCongresssays,“No,wedonotwanttoappropriatemoneyforthat;thatisawasteofmoney.WepreferthePresidentialCommitteeonhumanRights”?

FR. BERNAS. Madam President, I take exception to the statement that even after the ratification of thisConstitutionthepresentPresidentialCommitteeonHumanRightscontinuestobeapresidentialcommission.Itceasestobeapresidentialcommission.Andit,therefore,becomesindependentofthePresident.

MR. RODRIGO.ButitsaysherethatthePresidentwillappointfivecommissioners.DoestheCommissionermeanwehaveautomaticallyappoint,bymeansofthisconstitutionalprovision,thefivecommissioners?AretherefivecommissionersinthePresidentialCommissiononHumanRightsnow?

THE PRESIDENT. Therearesevencommissioners.

MR. RORIGO.MadamPresident,itisprovidedintheseprovisionswearediscussingthatthePresidentshallappointthechairmanandthefourmembersofthecommission.Beforethatappointmentshallhavebeendone,Idonotsupposetherewillbeanycommission.



FR. BERNAS. Themeaningofthephrase“untilotherwiseprovidedbylaw”hasreferencetothescopeandextentofthepowersofthepresentPresidentialCommitteeonHumanRights.Inotherwords,themomenttheConstitutionisratified,theCommissiononHumanRightshasallthepowersgiventothepresidentialcommittee,togetherwiththepowersgiventhatarehere,andwhatmaybechargedbylawarethepowersgiventothepresidentialcommitteewhicharenotfoundhere.


MR. RODRIGO.Atpresent,thePresidentialCommitteeonHumanRightsisunderthePresident,supportedbythePresidentandbackedbythepowersofthePresident.Soitcan,withthebackingofthePresident,call on any fiscal, prosecuting officer to cooperate. Does the Commissioner mean to say that when thisConstitutiontakeseffect,weshallsay:“Well,you,inthePresidentialCommitteeonHumanRightsarenowanisolatedisland.”

FR. BERNAS. Yes,MadamPresident.,thisisthepreciseintention.

MR. RODRIGO.Ifthisisthecase,Iwanttospeakencontra,MadamPresident.

FR. BERNAS. MadamPresident,theentirediscussionortenorwehadwhenwewerecreatingthiscommissionwastomakeitindependentofthePresident,precisely,sothatitcannotbepressuredbythePresident.


MR. RODRIGO.Butthisisironic,becausebymakingindependentofthePresident,weweakeninsteadofstrengtheningit.ItisallrighttomakeanofficeindependentofthePresident,ifwevestitwithpowersofitsown.Butwhatifitspowerismerelyrecommendatory,merelyinvestigative,withnopowertoactonitown?It isstrongerifbackedbythePresident.WeweakenthatofficeifwesegregateitfromthePresidentandmakeitanisolatedislandinanunchartedsea.

FR. BERNAS.IthinkitisveryclearthattheCommissioner’spositionisincompletedisagreementwiththepositionofthecommittee.

MR. RODRIGO. Yes. May I ask another question. Let us say the implementing legislation is enacted andCongressappropriatesthemoneyforthecommission;butthePresidentssays:“No,Idonotwanttoappointthechairmanandthemembersofthatcommission,becauseIalreadyhavethepresidentialcommitteeandIamveryhappywithit.Itisdoingverygoodwork;itisveryeffective,andIthinkifthisothercommissioniscreated,ifIappointthemembers,itwillnotbeaseffectiveasthecommitteethatIhavenow.Asamatteroffact,itwillbea‘papertiger’.”CanthePresidentrefusetoappoint?

FR. BERNAS.Thefact isthatoncethis isratified,thePresidentialCommitteeonHumanRightsceasestoexist.SothePresidentwillhavenoauthoritytoappointanybodytothepresidentialcommitteebecausetheofficenolongerexists.IfthePresidentappointssomebodytoanon-existingoffice,thatisaviolationoftheConstitution.

MR. RODRIGO. No.TheprovisionsaysthatthePresidentmustappointthechairmanandthemembersofthiscommissionthatisbeingcreatedbythisconstitutionalprovision.Butsupposethepresidentsays:“No,Iwillnotappointanybodytothecommission.”

FR. BERNAS.Itsisaspeculation,MadamPresident.

MR. RODRIGO. No, it is not a speculation because the President is happy with the present presidentialcommittee. I think it is very profitable. Why waste money on a new commission which is untried andpowerless?Thiscameoutduringtheinterpellations.Canthiscommissioninvestigate,andlaterontellthefiscal,“Youfileacase’?Theansweris:“No,itcannotcompel.”Sowhatistheuseofspendingmoneyonit?We


willjustberaisingthehopesofourpeopleandthenfrustratethemlateron.

Anotherthing,MadamPresident.EvenifCongress,letussay,appropriatesthemoney,andthePresidentappointsthefivecommissioners,wewillhaveacommissionwithitsofficeinManila.

HumanrightsareviolatedalloverthePhilippines:inMindanao,Visayas,Luzon,uptoBatanes.HowwillthevictimsofhumanrightsviolationinfarawayplacescommunicatewiththecommissioninManila?

FR. BERNAS.Itisobvious,MadamPresident,thatCommissionerRodrigowantstospeakencontra.Ithinkthematterheisraisingwasalreadyraisedhereduringtheperiodofamendments,anditisjustaquestionofvotingonSecondReading.

REV. RIGOS.MadamPresident.


REV. RIGOS.IamamemberofthecommitteebutwhenIvotedforthelastparagraphofSection1,whichreads“Untilotherwiseprovidedbylaw,theexistingPresidentialCommitteeonHumanRightsshallcontinueto perform its functions…,” my impression was that to perform its function as a Presidential CommitteeonHumanRightsandwillnotautomaticallybecometheCommissiononHumanRightsenvisionedinthisarticle.Thatwasmyunderstanding.

Inotherwords,thePresidentialCommitteeonHumanRightswillcontinuetofunctionuntilthisCommissionon Human Rights is created. Following the provisions we have spelled out in this article, it does notautomaticallybecometheCommissiononHumanRights.

FR. BERNAS. Madam President, I thing it is quite obvious that there are varying interpretations of theprovisionsbythisbody.So,perhaps,amotionforreconsiderationwouldbeinorder.

SUSPENSIONOFSESSION

THE PRESIDENT.Maywesuspendthesessionforafewminutes.

It was 4:18 p.m.

RESUMPTIONOFSESSION



TheFloorLeaderisrecognized.

MR. RAMA. MadamPresident,IaskthatCommissionerRigosberecognized.




REV. RIGOS. MadamPresident,ImoveforareconsiderationoftheapprovalofSection1(3)oftheArticleontheCommissiononHumanRights.

VOTING

THE PRESIDENT.AsmanyasareinfavorofthemotionofCommissionerRigostoreconsidertheapprovalofSection1(3),whichwasthesectioninvolvedjustbeforethesuspensionofthesession,pleaseraisetheirhand. (Several Members raised his hand.)


Theresultsshow31votesinfavorandnoneagainst;themotionforreconsiderationisapproved.

MR. RAMA. Madam President, I ask that Commissioner Regalado be recognized to present theamendment.


MR. REGALADO.Thank you, Madam President. In connection with the last paragraph of Section 1 (3), Irespectfully submit this amendment, coauthored by Commissioners Rodrigo, de los Reyes and Rigos, toreadasfollows:“UntilTHISCOMMISSIONISCONSTITUTED,theexistingPresidentialCommitteeonHumanRightsshallcontinuetoEXERCISEitsPRESENTactionsandpowers.”


MR. SARMIENTO. Wehavenoobjection,MadamPresident.

MR. NOLLEDO. Clarificatoryquestions,MadamPresident.

THE PRESIDENT.TheCommissionerpleaseproceed.

MR. NOLLEDO. Whenweusethephrase“UntilTHISCOMMISSIONISCONSTITUTED,”doesthismeanthatCongressismandatedtocreatethecommissionwithinareasonabletime?

MR. REGALADO. Yes,MadamPresident.


MR. DE CASTRO. MadamPresident,pointofclarification.


MR. DE CASTRO. Madam President, the first statement of Commissioner Regalado was “Until THISCOMMISSION IS CONSTITUTED.” In his answer to the Honorable Nolledo, he said,“Until it is created byCongress.”


Section1clearlystatesthatthecommissionshallbecreated.SoSection1alreadycreatedit.

MR. REGALADO. Ididnotmentiontheword“created.”Ijustgavetheansweryes,becauseCommissionerNolledowasaskingwhetherbythephrase“UntilTHISCOMMISIONISCONSTITUTED,”Congressismandatedtocreatethecommissionwithinareasonabletime.myanswerwasyes.Ididnotusetheword“created.”

Whatwemeanhereby“CONSTITUTED”iswhenCongresspassestheenablinglawwhichincludes,amongothers, the statement about the qualifications, as well as the ratification and the conjoint action of thepresident in appointing the Commissioners therein, from that moment this proposed commission isconstituted.

MR. DE CASTRO.SotheCommissionermeansthattheword“constituted”hereisdifferentfromtheword“created”asusedinSection1.

MR. REGALADO.Yes,MadamPresident.

MR. DE CASTRO.Thankyou.

MR. TINGSON.MadamPresident.

THE PRESIDENT.CommissionerTingsonisrecognized.

MR.TINGSON. Does the word “mandate” refer to the first Congress or could it be to subsequentCongresses?

FR. BERNAS. ItcertainlyreferstothefirstCongress,butifthefirstCongressdoesnothingaboutit, it isacontinuingmandate.

MR. TINGSON.ThatiswhatIwantedtofindout.Itisacontinuingmandate.ButthefirstCongressdoesnotneedtodoit,ifitdoesnotwantto.

FR. BERNAS. WecannotcompelCongress,MadamPresident.

MR. TINGSON. Thankyou,MadamPresident.

MR. SUAREZ.MadamPresident.

THE PRESIDENT.CommissionerSuarezisrecognized.

MR. SUAREZ. May we ask some clarificatory questions of the distinguished Commissioner Regalado.WhentheCommissionersaysthatthecommissionshouldbeconstituted,Iunderstandhehasinmindtheorganizationof thiscommissionbyvirtueof theappointmentbythePresidentof itsmembership.Am Icorrect,MadamPresident?



MR. REGALADO. Yes,MadamPresident,consequenttotheenablinglegislativeact.

MR. SUAREZ.Thankyou.Fromthattimeon,itwillbethiscommissionthatwillbeoperative.

MR. REGALADO. Thatisright,MadamPresident.

MR. SUAREZ. AndthatmeanstheautomaticabolitionofwhatisnowknownasthePresidentialCommitteeonHumanRights.

MR. REGALADO. ThePresidentialCommitteeonHumanRightswilltherebybecomefunctusofficio.

MR. SUAREZ. Thankyou.

Whatwouldhappentothecasespendingbeforethecommitteeuponitsabolition?

MR. REGALADO.Congress,Isuppose,shouldmakethecorrespondingprovisionswithrespecttopendingcases,aswellaswithrespecttothedispositionofthepersonnel,thetransferofequipmentsandassets,andtheaccountingofundisbursedfundswhichisstandard,afterall,inanycongressionalactwhetheranewofficeiscreatedinlieuofapreexistingone.

MR. SUAREZ.AndwhattheCommissionerisdeclaringnowcanbereadintotherecord.

MR. REGALADO. Yes,MadamPresident.

MR. SUAREZ. Whatwillhappentothepersonnelandofficersofthepresentcommittee,MadamPresident?

MR. REGALADO. AsIhavestated,asisstandardinmostcongressionalactsofthisnature,thereareprovisionsastowhetherthesepersonnel,thosewhoarequalified,willbegivenpreferentialappointmenttothenewcommissionorwillbeconsideredautomaticallyabsorbedtherein.

MR. SUAREZ. ThatcouldalsobereadintotherecordforfuturereferencebyCongress.

MR. REGALADO.Yes,MadamPresident,fortheguidanceoftheMembersofCongresswhentheyworkonthis.

MR. SUAREZ.Thankyou,MadamPresident.

MR. REGALADO.Thankyou.

VOTING

THE PRESIDENT. Asmanyasare in favorof thisproposedamendmentreadbyCommissionerRegalado,pleaseraisetheirhand.(Several Members raised their hand.)


Asmanyasagainst,pleaseraisetheirhand. (No Member raised his hand.)

Theresultsshow35votesinfavorandnoneagainst;theamendmentisapproved.

MR. RAMA.MadamPresident,inviewofthefactthatwedonothavethecleandraftoftheArticleontheCommissiononHumanRights, ImovefordefermentofthevoteonSecondReadinguntilthiscleantextshallhavebeendistributedamongtheMembers.


MR. RAMA. MadamPresident,IaskthatCommissionerBengzonberecognized.


SATURDAY, AUGUST 30, 1986 91-92



MR. RAMA.The Chairman of the Committee on Constitutional Commissions and Agencies seeks first tomakesomestatementsbeforewevoteonSecondReadingontheArticleontheCommissiononHumanRights.MayIaskthatCommissionerFozberecognized.

MR. FOZ. MadamPresident,copiesofProposedResolutionNo.539weredistributedyesterday.BeforewevoteonSecondReadingontheArticle,wewouldliketopresentsomecorrectionsforconsiderationbytheCommitteeonStyle.

1)Onpage1,line9,substitutethephrase“allofwhomshall”withthewords“WHOMUST”.

2)Onpage2, line1,deletethecomma(,)after“guidelines”andaddtheword“AND”,sothat itwill read:“AdoptitsoperationalguidelinesANDrulesofprocedure…”

3) On the same page 2, line 7, delete the phrase‘citizens of the Philippines” and in lieu there of insert‘FILIPINOS”.

4)Onpage3, line2,amendittoread:“CongressmayprovideforothercasesofVIOLATIONSOFHUMANRIGHTS.”

5)Onthesamepage3,lone3,insertcomma(,)between“Commission”and“taking”.

Thankyou,madamPresident.

MR.RAMA. MadamPresident,ImovethatwevoteonSecondReadingontheArticleontheCommissiononHumanRights,ascorrectedbytheChairman.


THE PRESIDENT.Letusrequestfirstforavoteonthecorrectionssubmittedbythehonorablechairman.Isthereanyobjection?(Silence)TheChairhearsnone;letthepropercorrectionsbemade.TheFloorLeadermaypleaseproceed.

MR. RAMA. Madam President, I reiterate my motion to vote on Second Reading on the Article on theCommissiononHumanRights.

THE PRESIDENT.Isthereanyobjection?(SILENCE)

TheChairhearsnone;themotionisapproved.

MayweasktheSecretary-GeneraltoreadthetitleofProposedResolutionNo.539

THE SECRETARY-GENERAL. ProposedResolutionNo.539entitled:


APPROVALOFPROPOSEDRESOLUTIONNO.539ONSECONDREADING(ArticleontheConstitutions-CommissiononHumanRights)

THE PRESIDENT. AsmanyasareinfavorofthisproposedresolutiontoincorporateinthenewConstitutiontheprovisionsontheCommissiononHumanRights,pleaseraisetheirhand.(Several Members raised their hand.)

Asmanyasareagainst,pleaseraisetheirhand. (No Member raised his hand.)

Asmanyasareabstaining,pleaseraisetheirhand. (A Member raised his hand.)

Theresultsshow31votesinfavor,noneagainstand1abstention.ProposedResolutionNo.539,asamended,isapprovedonSecondReading.

TheChairinquireswherethisparticularArticlewillbeplaced.

MR. FOZ.WehavenotdecidedyetbutwewouldratherthatthismatterberesolvedbytheCommitteeonSponsorship.Ithinkitiswithinitscompetencetodecidewherejustexactlytoplacethisprovision.


WEDNESDAY, SEPTEMBER 3, 1986 201

MR. RAMA.MadamPresident, Iask thatCommissionerFozbe recognized foramotiontovoteonThirdReadingontheArticleonHumanRights.


MR. FOZ.MadamPresident, I thoughtthattheFloorLeaderwouldcall forapprovalonThirdReadingofProposed Resolution No. 539 which would incorporate in the new Constitution the provisions on theCommissiononHumanRights.

IsthatthemotionoftheFloorLeadernow?

MR. RAMA. Imove,MadamPresident,foravoteonThirdReadingontheArticleonHumanRights.



MR. DAVIDE.MayImovetoamendthemotionoftheFloorLeader,becausetherewasanunderstandingthatisshouldnotbeknownasanarticle;itmaybeplacedanywheredependingontheactionoftheCommitteeonSponsorship.Itisnotanarticle.

MR. RAMA.ThatwillbeexplainedpreciselybyCommissionerFoz.

MR. FOZ. Madam President, this is a proposed resolution to incorporate in the new Constitution theprovisionsontheCommissiononHumanRights.So,wearenotcallingthisaseparatearticle.

MadamPresident,beforewegointoThirdReadingapprovalofthisresolutionconcerningthecreationoftheCommissiononHumanRights,wewouldliketocallattentiontoareservationmadebyCommissionerRegalado, and to which the Committee on Constitutional Commissions and Agencies has subscribed,regardingaprovisionwhichthisbodyhadearlierapprovedinconnectionwiththeArticleonAccountabilityofPublicOfficers.

Ireferspecifically,MadamPresident,toSection12(2)oftheArticleonAccountabilityofPublicOfficerswherethefollowingphrase,aspresentedbyCommissionerRegaladoandapprovedbythecommittee,appearsandIquote:“includinganyviolationofcivil,political,orhumanrights.”ThishasreferencetothejurisdictionoftheOfficeoftheOmbudsman.ThatamendmentwasapprovedbytheCommitteeonAccountabilityofPublicOfficersandbythisbody,withtheunderstandingthat if theproposaltocreateaCommissiononHumanRightsisapprovedbythisbody,thenthisphaseinquestionwouldbedeleted.

So,withtheapprovalbythisbodyoftheproposedCommissiononHumanRights,IwouldliketocalltheattentionoftheCommitteeonSponsorshipandalso,perhaps,theCommitteeonStyle,sothatthephrase“includinganyviolationofcivil,political,orhumanrights”whichisnowpartoftheArticleonAccountabilityofPublicOfficers,section12(2),bedeletedaccordingly.




SUSPENSIONOFSESSION

THE PRESIDENT. Thesessionissuspended.

It was 10:51 a.m.

RESUMPTIONOFSESSION




THE PRESIDENT. TheFloorleaderisrecognized.

MR. RAMA.MadamPresident,thisiswithrespecttothemotiontovoteonThirdReadingontheArticleonAccountabilityofPublicOfficers,aswellastheproposedresolutionontheCommissiononHumanRights.

THE PRESIDENT. Whichshallwetakefirst?

MR. RAMA. CommissionerFozhasagreedIwasrightthattherewasnoThirdReadingvoteontheArticleofaccountabilityofPublicOfficers.So,IaskthatwevotefirstonThirdReadingontheArticleonAccountabilityofPublicOfficers.

THE PRESIDENT. Is that correct?When we suspended the session, there was a proposal to have aThirdReadingvoteontheresolutionontheCommissiononHumanRights.

MayweaskCommissionerFozwhichhepreferstotakeupfirst,becauseoftheremarkshemade.

NOMINALVOTINGONPROPOSEDRESOLUTIONNO.539ONTHIRDREADING(ArticleontheConstitutionalCommissions-CommissiononHumanRights)

MR. FOZ.Imove,MadamPresident,thatwefirstapproveonThirdReadingProposedResolutionNo.539ontheCommissiononHumanRights.Thenafterthat,wegoontotheArticleontheAccountabilityofPublicOfficers.

THE PRESIDENT.Isthereanyobjection?(Silence)thechairhearsnone;themotionisapproved.

PrintedcopiesofProposedResolutionNo.539weredistributedonSeptember1,1986pursuanttoSection28,RuleVIoftheRulesoftheConstitutionalCommission.

VotingontheproposedresolutiononThirdReadingis,therefore,inorder.


THE SECRETARY-GENERAL.ProposedResolutionNo.539,entitled:RESOLUTIONTOINCORPORATEINTHECONSTITUTIONTHEPROVISIONSONTHECOMMISSIONONHUMANRIGHTS.

FIRSTROLLCALL

THE PRESIDENT. ThebodywillnowvoteonthisproposedresolutionandtheSecretary-Generalwillcalltheroll.

THE SECRETAY-GENERAL, reading:

Abubakar………. Foz…………..YesAlonto…………... Garcia……….Aquino…………. Gascon……..YesAzcuna………… Guingona……YesBacani…………Yes Jamir…………Bengzon……… Laurel……….Bennagen…….Yes Lerum……….Bernas………..Yes Maambong….YesRosarioBraid… Monsod……..YesCalderon………Yes Natividad……YesCastrode…….. Nieva………..Colayco……….Yes Nolledo………YesConcepcion…… Ople………….YesDavide…………Yes Padilla……….

COMMISSIONERPADILLAEXPLAINSHISVOTE

MR. PADILLA.MadamPresident,IalsovoteyesbutIhopethatthiswouldnotbeaduplicationandworse,arelegationoftheentiregovernmentalmachineryfortheenforcementofhumanrightsandtheprosecutionandtrialandconvictionofviolatorsthereof.As Istated inmyearlierobservations, theenforcementandprotectionofhumanrightswillnotmerelydependonaCommissiononHumanRightsbutwouldinvolvetheentiregovernmentalmachinery,includingthelawenforcementagencies,theprosecutionarmofthegovernmentandaneffectiveadministrationofjustice.



MunozPalma……….Yes Suarez……….YesQuesada…………….Yes Sumulong……Rama………………...Yes Tadeo…………Regalado……………. Tan……………Reyesdelos………..Yes Tingson………YesRigos………………… Trenas……….Rodrigo…………….Yes Uka…………….Romulo…………….Yes Villacorta……..YesRosales…………… Villegas……….YesSarmiento…………Yes


MR. OPLE.MadamPresident,mayIknowhowmyvotewasrecorded?

THE SECRETARY-GENERAL.Yes.


MR. OPLE.MayIexplainmyvote,MadamPresident?


COMMISSIONEROPLEEXPLAINSHISVOTE

cont.concom3

MR. OPLE.Ithinkthisisahistoricmilestoneintheentirehistoryofthestruggleforcivillibertiesandhumanrightsinourcountry.Someofushadinitialreservationsaboutsettingupaconstitutionalbodythatwouldactwithreasonableindependenceofthegovernmentitselfinthepursuitofthecrusadeforhumanrights,butIthinkaconsensusgrewthatnothingshortofaconstitutionalsanctionandmandatewouldberequiredinordertomakehumanrightsortheconcernforhumanrightssecondnaturetoourcountrymen.

MadamPresident,itisunfortunatebuttruethatwhenoneleavestheboundariesofthemetropolitanareas,theprotectionoftheConstitutionforcivilrightsseemstodiminishordwindleindirectproportiontothedistance.AndthatisthereasonwhyinMetroManilawedonothearofnewspapermenbeingkilled;itisveryseldomwhenwehearofmembersofthemassmediabeingassassinatedinMetroManilabecausewehaveinmetropolitanareasexisting infrastructure for theenforcementofconstitutional rights.Wehavereadyaccess tomedia;wehavereadyaccess tothehighest levelsofgovernment for redress.Wehavehumanrightsgroupsthatareeagertolisten,butintheproportiontothedistancefrommetropolitancenters,theriskfortheexerciseofhumanrightsandcivillibertiesaggravates.Andthatisthereasonwhyin1985,nolessthan18membersofmedia-newspapereditors,andradiocommentators-werekilled,andI think inthe majority of cases, the authorities have not come up with findings on who perpetrated these brutalassassinationswhichareconsideredawayofstrikingattherootsofpressfreedom.

And so, in voting for this provision for a Human Rights Commission, Madam President, I see my mindfocusingonthepossibilitiesforthiscommissiontopropagateahumanrightsconsciousnesssothatevenintheremotehinterlandsofourcountry,thepeoplewholacktheinfrastructureofredressandofamenitiesinmetropolitanareaswillbegintoassimilatethesignificanceofhumanrights intheir livesasacivilizedsociety.


SECONDROLLCALL

THE PRESIDENT.TheSecretary-Generalwillconductasecondcallforthosewhohavenotregisteredtheirvotes.



Abubakar……….Yes Regalado……….YesAlonto…………...Yes Rigos……………YesAquino…………..Yes Rosales…………Bengzon………..Yes Sumulong………YesRosarioBraid…..Yes Tadeo…………...YesCastrode……….Yes Tan………………YesConcepcion……..Yes Trenas………….Garcia……………Yes Uka……………..YesJamir…………….YesLaurel……………YesLerum……………Nieva……………..Yes

APPROVALOFPROPOSEDRESOLUTIONNO.539ONTHIRDREADING(ArticleontheConstitutionalCommissions-CommissiononHumanRights)

THE PRESIDENT.Theresultsshow44votesinfavor,noneagainstandnoabstention.

ProposedResolutionNo.539isapprovedonThirdReading.

MR. RAMA. Madam President, I move that we vote onThird Reading on Proposed Resolution No. 456,entitled:

RESOLUTION PROPOSING TO INCORPORATE IN THE 1986 CONSTITUTION AN ARTICLE ONACCOUNTABILITYOFPUBLICOFFICERS.



MR. DE CASTRO. Before we go to the voting, I would request certain clarifications on the Article onAccountabilityofPublicOfficers.Onpage4,Section6, line3speaksoftheOmbudsmantobeknownasTanodbayan.Inthisconnection,Iwouldliketorelatethisincidenttothebody.LastSaturdayevening,whenI met the Honorable Raul Gonzalez, he immediately accosted me and asked,“Why did the Commissionprohibitme fromrunning forelection?” Iwasdumbfounded,MadamPresident; Ididnotknowwhathewastalkingabout,until I realizedthathewastheTanodbayan.Andso I toldHonorableGonzalezpoint-blank,asIusuallyspeakbecauseIamnotadiplomat,“YourHonor,youarenottheOmbudsman;youareaspecialprosecutoroftheSandiganbayan,andtheoneweareprohibitingfromrunningforelectionistheOmbudsman.”Therereallyisalittledifferenceorsomemisunderstandingwhenwesay:

ThereisherebycreatedtheindependentOfficeoftheOmbudsman,composedoftheOmbudsmantobeknownasTanodbayan.

Toavoidallmisunderstandingonthispoint,untilsuchtimethatwemaybeabletohavetheappropriatewordforOmbudsman,Iwillreallymovethatthewords“tobeknownasTanodbayan”deletedfromthethirdlineofSection6,page4.



THE PRESIDENT.Maywehearformthechairman,CommissionerMonsod?

MR. MONSOD. MadamPresident,Ibelievethatthearticleisquiteclear.Asamatteroffact,weshoulddrawtheattentionofthepresentTanodbayantoSection5ofthearticle,notSection6,whichsays:“TheTanodbayan,presently existing, shall hereafter be known as Special Prosecutor.” In effect, what we are saying here isthat,JusticeGonzalez,aftertheratificationofthisConstitution,istobeknownastheSpecialprosecutor,towhomnodisabilityappliesinrunningfortheSenate.If,however,thePresidentsochoosestoappointhiminaccordancewiththisarticleastheTanodbayanorOmbudsmanunderthenewConstitutionandheacceptssuchappointment,thentheprohibitionwillapplytohim.So,wesubmit,MadamPresident,thatthereisnoneedforanyamendmentbecausethearticle,aswritten,isquiteclear.

MR. DE CASTRO. MadamPresident,withtheexplanation,Isubmit,andthatIjustliketogivetheinformationtothisbodyabouttheapparentmisunderstandingofthepresentTanodbayan-thatheistheOmbudsman.

Thankyou.

MR. RAMA. Thebody,MadamPresident,isnowreadytovoteonThirdreadingonsaidarticle.

MR. MONSOD.MadamPresident,IbelievethatCommissionerFozhadearliermadeamanifestation.Andbeforewevote,mayIrepeatthemanifestationsaschairmanofthecommittee.ThatinaccordancewiththereservationsandtherecordofthedebatesonthesectionontheOmbudsman,Section12(2),weapproveonThirdReadingthisarticlewiththedeletionof thephrase“includinganyviolationofcivil,political,orhumanrights.”WiththeapprovaloftheproposedCommissiononHumanRights,thisphrasewouldreallybeeliminatedoncetheCommissiononHumanRightsisapprovedbythisbody.

THE PRESIDENT. Sothattherewillbeaperiod(.)after“duties.”

MR. MONSOD.Yes,MadamPresident.



MR. MAAMBONG.JustapointofclarificationfromCommissionerMonsod.Doesthismeanthatanyviolationofcivil,politicalorhumanrightsintheperformanceofdutiesofpublicofficerswillnolongerbewithinthejurisdictionoftheTanodbayan,andshouldbewiththeCommissiononHumanRights?

MR. MONSOD. Yes.The jurisdiction over civil and political rights, defined in the Commission on HumanRightsasthehumanrightsunderitsjurisdiction,isnowtakenoutofthejurisdictionoftheOmbudsman.

MR. MAAMBONG.Forgiveme,butIwasactingundertheimpressionthatanykindofviolation,aslongasitiscommittedbypublicofficers,shouldexclusivelypertaintotheTanodbayan,regardlessofwhetheritisaviolationofcivil,politicalorhumanrights.ThebenchmarkIthoughtwasthat,incaseswherepublicofficialsorpublicemployeesorpublicofficersareinvolved,theseshouldproperlybewiththeTanodbayan.


MR. MONSOD.IthinkthejurisdictionoftheCommissiononHumanRightsisquiteclear-thatallviolationsofhumanrights involvingcivilandpoliticalrightsarenowwithinthe jurisdictionoftheCommissiononHumanRights,andoneoftheissuesthatwaspreciselyraisedbyCommisisonerBengzonatthattimewasthat we should try to eliminate overlaps in government offices.Therefore, with this amendment and inconsonancewiththerepresentationatthattimeofCommissionerRegalado,thisisnowtakenoutoftheareaoftheOmbudsmanandplacedundertheCommissiononHumanRights.

MR. MAAMBONG. Just one point, Madam President. If we are agreed that violations of civil, political orhumanrightscommittedbypublicofficerswillbewiththeCommissiononHumanRights,IwouldassumethattherewillbepracticallynocaseswithinthejurisdictionoftheTanodbayan.Duringmyinterpellationofthecommittee,whenwetalkedaboutcivil,politicalorhumanrights,thecommitteewasveryspecificinsayingthatwhenwesay“politicalrights”wearealsotalkingofviolationsofindividualrights,andthiswilltakeoutpracticallyallthejurisdictionoftheTanodbayan.

MR. MONSOD.No,IbelieveitwasclarifiedintheinterpellationsanddebatesanddebatesthattheareaoftheCommissiononHumanRightsismuchnarrowerandtherewasevenanenumerationofthoseviolationsmentionedbythepanelatthattime.weareonlytryingtotakeouttheoverlaphere,MadamPresident.IagreewiththeGentlemanthatifoneweretotakehumanrightsinitsbroadestcontext,thentheCommissionitself,willitexpandtheareaofthecoverageoftheCommissiononHumanRights.


MR. MAAMBONG.MadamPresident,ifitwillnotgravelydamagethescheduleonthisarticle,woulditbeallright,withthepermissionofCommissionerMonsod,thatwedeferconsiderationonThirdReadingofthisparticulararticle?

MR. MONSOD.MayIknow,MadamPresident,thebasisoftherequestfordeferment,becausetherecordsofthedeliberationsonthearticleare,Ibelieve,quiteclear,andtheinterpretationwillnowbelefttothecourtsandforCongresstoimplement.Ibelievethereisenoughintherecords,tosolveanyoftheseoverlaps.

MR. MAAMBONG.Iwasthinkingthatweshoulddiscussthisnotnecessarilyonthefloorsothatitwillnottakemuchofourtime.However,Iwillnotinsist,MadamPresident.

THE PRESIDENT. Commissioner Maambong, this was already approved on Second Reading with thatreservation.

MR. MAAMBONG. Yes, Iunderstandthat,MadamPresident,but Iamnot really insistingon it. Iwas justthinkingthatperhapsthechairmanofthecommitteewouldtakethisunderproperadvisementandwecantalkaboutitfirst.

MR. MONSOD. Madam President, perhaps we can go ahead with theThird Reading and CommissionerMaambongcanmakethemanifestationsintherecordinvokingthedistinctionsthatmustbemadeinordertoavoidoverlapsinthefunctionsofthesetwooffices.

MR. MAAMBONG.Wesubmit,MadamPresident.Thatwouldbeallright.


6

Paris Principles:Principles Relating to the Status of National

Institutions

1.Anationalinstitutionshallbevestedwithcompetencetopromoteandprotecthumanrights.

2.Anationalinstitutionshallbegivenasbroadamandateaspossible,whichshallbeclearlysetforthinaconstitutionalorlegislativetext,specifyingitscompositionanditssphereofcompetence.

3.Anationalinstitutionshall,interalia,havethefollowingresponsibilities:

(a)TosubmittotheGovernment,Parliamentandanyothercompetentbody,onanadvisorybasiseitherattherequestoftheauthoritiesconcernedorthroughtheexerciseofitspowertohearamatterwithouthigherreferral, opinions, recommendations, proposals and reports on any matters concerning the promotionand protection of human rights; the national institution may decide to publicize them; these opinions,recommendations,proposalsandreports,aswellasanyprerogativeofthenationalinstitution,shallrelatetothefollowingareas:

(i) Any legislative or administrative provisions, as well as provisions relating to judicialorganizations, intended to preserve and extend the protection of human rights; in thatconnection, the national institution shall examine the legislation and administrativeprovisionsinforce,aswellasbillsandproposals,andshallmakesuchrecommendationsasitdeemsappropriateinordertoensurethattheseprovisionsconformtothefundamentalprinciplesofhumanrights;itshall,ifnecessary,recommendtheadoptionofnewlegislation,theamendmentoflegislationinforceandtheadoptionoramendmentofadministrativemeasures;

(ii)Anysituationofviolationofhumanrightswhichitdecidestotakeup;

(iii)The preparation of reports on the national situation with regard to human rights ingeneral,andonmorespecificmatters;

(iv)DrawingtheattentionoftheGovernmenttosituationsinanypartofthecountrywherehumanrightsareviolatedandmakingproposalstoitforinitiativestoputanendtosuchsituationsand,wherenecessary,expressinganopiniononthepositionsandreactionsoftheGovernment;

(b)To promote and ensure the harmonization of national legislation regulations and practices with the

UN COMMISSION ON HUMAN RIGHTS RESOLUTION 1992/54 OF 3 MARCH 1992, ANNEX (E/1992/22);

GENERAL ASSEMBLY RESOLUTION 48/134 OF 20 DECEMBER 1993, ANNEX

COMPETENCE AND RESPONSIBILITIES


internationalhumanrightsinstrumentstowhichtheStateisaparty,andtheireffectiveimplementation;

(c)Toencourageratificationoftheabove-mentionedinstrumentsoraccessiontothoseinstruments,andtoensuretheirimplementation;

(d)TocontributetothereportswhichStatesarerequiredtosubmittoUnitedNationsbodiesandcommittees,andtoregionalinstitutions,pursuanttotheirtreatyobligationsand,wherenecessary,toexpressanopiniononthesubject,withduerespectfortheirindependence;

(e)To cooperate with the United Nations and any other organization in the United Nations system, theregionalinstitutionsandthenationalinstitutionsofothercountriesthatarecompetentintheareasofthepromotionandprotectionofhumanrights;

(f )Toassistintheformulationofprogrammesfortheteachingof,andresearchinto,humanrightsandtotakepartintheirexecutioninschools,universitiesandprofessionalcircles;

(g) To publicize human rights and efforts to combat all forms of discrimination, in particular racialdiscrimination, by increasing public awareness, especially through information and education and bymakinguseofallpressorgans.

1.Thecompositionofthenationalinstitutionandtheappointmentofitsmembers,whetherbymeansofanelectionorotherwise,shallbeestablishedinaccordancewithaprocedurewhichaffordsallnecessaryguarantees to ensure the pluralist representation of the social forces (of civilian society) involved in thepromotionandprotectionofhumanrights,particularlybypowerswhichwillenableeffectivecooperationtobeestablishedwith,orthroughthepresenceof,representativesof:

(a) Non-governmental organizations responsible for human rights and efforts to combat racialdiscrimination, trade unions, concerned social and professional organizations, for example,associationsoflawyers,doctors,journalistsandeminentscientists;

(b)Trendsinphilosophicalorreligiousthought;

(c)Universitiesandqualifiedexperts;

(d)Parliament;

(e)Governmentdepartments(iftheseareincluded,theirrepresentativesshouldparticipateinthedeliberationsonlyinanadvisorycapacity).

2.Thenationalinstitutionshallhaveaninfrastructurewhichissuitedtothesmoothconductofitsactivities,inparticularadequate funding.Thepurposeof this fundingshouldbetoenable it tohave itsownstaff

COMPOSITION AND GUARANTEES OF INDEPENDENCE AND PLURALISM

223Paris Principles

andpremises,inordertobeindependentoftheGovernmentandnotbesubjecttofinancialcontrolwhichmightaffectitsindependence.

3. Inorder toensureastablemandate for themembersof thenational institution,withoutwhichtherecanbenoreal independence,theirappointmentshallbeeffectedbyanofficialactwhichshallestablishthespecificdurationofthemandate.Thismandatemayberenewable,providedthatthepluralismoftheinstitution’smembershipisensured.

METHODS OF OPERATION

Withintheframeworkofitsoperation,thenationalinstitutionshall:

(a) Freely consider any questions falling within its competence, whether they are submitted by theGovernmentortakenupbyitwithoutreferraltoahigherauthority,ontheproposalofitsmembersorofanypetitioner;

(b) Hear any person and obtain any information and any documents necessary for assessing situationsfallingwithinitscompetence;

(c)Addresspublicopiniondirectlyorthroughanypressorgan,particularlyinordertopublicizeitsopinionsandrecommendations;

(d)Meetonaregularbasisandwhenevernecessaryinthepresenceofallitsmembersaftertheyhavebeendulyconvened;

(e)Establishworkinggroupsfromamongitsmembersasnecessary,andsetuplocalorregionalsectionstoassistitindischargingitsfunctions;

(f ) Maintain consultation with the other bodies, whether jurisdictional or otherwise, responsible for thepromotionandprotectionofhumanrights(inparticularombudsmen,mediatorsandsimilarinstitutions);

(g)Inviewofthefundamentalroleplayedbythenon-governmentalorganizationsinexpandingtheworkofthenationalinstitutions,developrelationswiththenon-governmentalorganizationsdevotedtopromotingandprotectinghumanrights, toeconomicandsocialdevelopment,tocombattingracism,toprotectingparticularly vulnerable groups (especially children, migrant workers, refugees, physically and mentallydisabledpersons)ortospecializedareas.


ADDITIONAL PRINCIPLES CONCERNING THE STATUS OF COMMISSIONS WITH QUASI-JURISDICTIONAL COMPETENCE

A national institution may be authorized to hear and consider complaints and petitions concerningindividualsituations.Casesmaybebroughtbeforeitbyindividuals,theirrepresentatives,thirdparties,non-governmentalorganizations,associationsoftradeunionsoranyotherrepresentativeorganizations.Insuchcircumstances,andwithoutprejudicetotheprinciplesstatedaboveconcerningtheotherpowersofthecommissions,thefunctionsentrustedtothemmaybebasedonthefollowingprinciples:

(a)Seekinganamicablesettlementthroughconciliationor,withinthelimitsprescribedbythelaw,throughbindingdecisionsor,wherenecessary,onthebasisofconfidentiality;

(b)Informingthepartywhofiledthepetitionofhisrights,inparticulartheremediesavailabletohim,andpromotinghisaccesstothem;

(c)Hearinganycomplaintsorpetitionsortransmittingthemtoanyothercompetentauthoritywithinthelimitsprescribedbythelaw;

(d) Making recommendations to the competent authorities, especially by proposing amendments orreformsofthelaws,regulationsandadministrativepractices,especiallyiftheyhavecreatedthedifficultiesencounteredbythepersonsfilingthepetitionsinordertoasserttheirrights.

225Paris Principles

Documents

1 Constitutional Provisions 1 - Ombudsman of the · PDF file1 Constitutional Provisions ... shall be provided by law. ... Monitor the Philippine Government’s compliance with international