Revilla v Ombudsman
Facts:
1.
Petitioners
are all charged as co-conspirators for their respective participations in the
illegal pillaging of public funds sourced from the PDAF of Sen. Revilla for the
years 2006 to 2010, in the total amount of P517,000,000.00. The charges are
contained in 2 complaints, namely: (1) a Complaint for Plunder filed by the NBI
and (2) a Complaint for Plunder and violation of Section 3 (e) of RA 301918
filed by the Field Investigation Office of the Ombudsman
a. Sen. Revilla, as Senator, for authorizing the
illegal utilization, diversion, and disbursement of his allocated PDAF through
his endorsement of fraudulent NGOs created and controlled by Napoles' JLN
Corporation in relation to "ghost" PDAF-funded projects, and for
receiving significant portions of the diverted PDAF funds as his
"commission" or "kickback
b. Cambe, as Chief of Staff of Sen. Revilla during
the times material to this case, for processing the utilization, diversion, and
disbursement of Sen. Revilla's PDAF, and for personally receiving his own
"commission" or "kickback"
c. Napoles, as the mastermind of the entire PDAF
scam, for facilitating the illegal utilization, diversion, and disbursement of
Sen. Revilla's PDAF through: (1) the commencement via "business
propositions" with the legislator regarding his allocated PDAF; (2) the
creation and operation of JLN-controlled NGOs to serve as "conduits"
for "ghost" PDAF-funded projects; (3) the use of spurious receipts
and liquidation documents to make it appear that the projects were implemented
by her NGOs; (4) the falsification and machinations used in securing funds from
the various implementing agencies (IAs) and in liquidating disbursements; and (5)
the remittance of Sen. Revilla's PDAF for misappropriation
d. Lim and De Asis, as staff employees of Napoles,
for assisting in the fraudulent processing and releasing of the PDAF funds to
the JLN-controlled NGOs
e. Relampagos, Nuñez, Paule, and Bare (Relampagos,
et al.), as employees of the Department of Budget and Management (DBM), for
participating in the misuse or diversion of Sen. Revilla's PDAF, by acting as
"contacts" of Napoles within the DBM, and thereby, assisting in the
release of the Special Allotment Release Orders (SAROs) and Notices of Cash
Allocation (NCAs) covering Sen. Revilla's PDAF
2.
Counter Affidavits:
a. Revilla, contending that: (a) his and
Cambe's signatures in the PDAF documents were forgeries; (b) the utilization
of his PDAF had "always been regular and above-board"; (c) his involvement in the release of his PDAF is limited; and (d) there is "no
credible proof" to show that he committed said illegal acts and that
conspiracy exists between him and all the other persons involved in the PDAF
scam
b. Cambe, maintaining that: (a) his
signatures in the PDAF documents were all forgeries; and (b) he did not
receive any money from Sen. Revilla's PDAF nor connive with any of the alleged
co-conspirators to acquire ill-gotten wealth.
c. De Asis admitting that: (a) he was an
employee of the JLN Corporation; (b) he did pick up checks for JLN-controlled NGOs; and (c) he was an
incorporator in one of the JLN-controlled NGOs; but denying that he personally
benefited from the supposed misuse of Sen. Revilla's PDAF.
d. Relampagos, et al., contended that: (a) there is
no probable cause and factual or legal basis to indict them for the
offenses charged; and (b) the
criminal complaints did not specifically mention their names as among those who
allegedly participated in the misuse of Sen. Revilla's PDAF.
3.
Ombudsman held that probable cause exists against Sen. Revilla,
Cambe, Napoles, De Asis, and Lim for Plunder, considering that: (a) Sen. Revilla was a public officer at the
time material to the charges; (b)
with the help of his co-accused, who are public officers and private
individuals, Sen. Revilla amassed, accumulated, or acquired ill-gotten wealth
through their intricate modus operandi as
described above; and (c) such
ill-gotten wealth amounted to at least P224,512,500.00, way more than the
threshold amount of P50,000,000.00 required in the crime ofPlunder.
In the same manner, the Ombudsman established probable cause to indict all the petitioners (along with several others), except Lim, for violation of Section 3 (e) of RA 3019 in light of the following: (a) Sen. Revilla, Cambe, and Relampagos, et al. are all public officers, while private individuals Napoles and De Asis all conspired with these public officers; (b) said public officers exhibited manifest partiality to Napoles and her cohorts by favoring her controlled NGOs without the benefit of public bidding and without having been authorized by an appropriation law or ordinance, as legally mandated; (c) said public officers likewise exhibited their bad faith by unduly benefiting from the "ghost" PDAF-funded projects through the receipt of "commissions," "kickbacks," and the like; and (d) their collective acts caused undue injury to the government in the aggregate amount of P517,000,000.00
In the same manner, the Ombudsman established probable cause to indict all the petitioners (along with several others), except Lim, for violation of Section 3 (e) of RA 3019 in light of the following: (a) Sen. Revilla, Cambe, and Relampagos, et al. are all public officers, while private individuals Napoles and De Asis all conspired with these public officers; (b) said public officers exhibited manifest partiality to Napoles and her cohorts by favoring her controlled NGOs without the benefit of public bidding and without having been authorized by an appropriation law or ordinance, as legally mandated; (c) said public officers likewise exhibited their bad faith by unduly benefiting from the "ghost" PDAF-funded projects through the receipt of "commissions," "kickbacks," and the like; and (d) their collective acts caused undue injury to the government in the aggregate amount of P517,000,000.00
4.
MR denied,
Informations were filed by the Ombudsman before the Sandiganbayan, charging:
(a) Sen. Revilla, Cambe, Napoles, De Asis, and Lim of one (1) count of
Plunderand (b) all the petitioners, except Lim, of sixteen (16) counts of
violation of Section 3 (e) of RA 3019
5.
To forestall
the service of the warrant of arrest against him, Sen. Revilla filed a Motion
for Judicial Determination of Probable Cause and Deferment and/or Suspension of
Proceedings.86 Likewise, Relampagos, et al. moved that the Sandiganbayan
declare lack of probable cause against them and suspend proceedings.
6.
the
Sandiganbayan issued a Resolution, finding probable cause against petitioners
and their co-accused and, thereby, issued the corresponding warrants of arrest
against them
Issue:
whether or not the findings of probable cause
against all petitioners should be upheld.
Held: Yes
Time and again, this Court's consistent policy
has been to maintain non-interference in the Ombudsman's determination of the
existence of probable cause, provided there is no grave abuse in the exercise
of such discretion. Probable cause simply means "such facts as
are sufficient to engender a well-founded belief that a crime has been
committed and that respondent is probably guilty thereof. The term does not
mean 'actual and positive cause' nor does it import absolute certainty. It
is merely based on opinion and reasonable belief." "[T]hus,
a finding based on more than bare suspicion but less than evidence that would
justify a conviction would suffice.”
In determining the elements of the crime charged for purposes of arriving at a finding of probable cause, "only facts sufficient to support a prima facie case against the [accused] are required, not absolute certainty." In this case, the petitioners were charged with the crimes of Plunder and/or violations of Section 3 (e) of RA 3019. Plunder, defined and penalized under Section 2 of RA 7080, as amended, has the following elements: (a) that the offender is a public officer, who acts by himself or in connivance with members of his family, relatives by affinity or consanguinity, business associates, subordinates or other persons; (b) that he amasses, accumulates or acquires ill-gotten wealth through a combination or series of overt or criminal acts described in Section 1 (d) thereof; and (c) that the aggregate amount or total value of the ill-gotten wealth amassed, accumulated or acquired is at least Fifty Million Pesos (P50,000,000.00). On the other hand, the elements of violation of Section 3 (e)of RA 3019 are: (a) that the accused must be a public officer discharging administrative, judicial, or official functions (or a private individual acting in conspiracy with such public officers); (b) that he acted with manifest partiality, evident bad faith, or inexcusable negligence; and (c) that his action caused any undue injury to any party, including the government, or giving any private party unwarranted benefits, advantage, or preference in the discharge of his functions. In determining probable cause therefor, only a showing of the ostensible presence of these elements is required.
It should be borne in mind that probable cause is determined during the context of a preliminary investigation which is "merely an inquisitorial mode of discovering whether or not there is reasonable basis to believe that a crime has been committed and that the person charged should be held responsible for it." It "is not the occasion for the full and exhaustive display of the prosecution's evidence." Therefore, "the validity and merits of a party's defense or accusation, as well as the admissibility of testimonies and evidence, are better ventilated during trial proper than at the preliminary investigation level." Accordingly, "owing to the initiatory nature of preliminary investigations, the technical rules of evidence should not be applied in the course of its proceedings." In this light, and as will be elaborated upon below, this Court has ruled that "probable cause can be established with hearsay evidence, as long as there is substantial basis for crediting the hearsay," and that even an invocation of the rule on res inter alios acta at this stage of the proceedings is improper.
Guided by these considerations, the Court finds that the Ombudsman did not gravely abuse its discretion in finding probable cause to indict Sen. Revilla, Cambe, Napoles, De Asis, and Lim of one (1) count of Plunder, and all the petitioners, except Lim, of sixteen (16) counts of violation of Section 3 (e) of RA 3019.
In determining the elements of the crime charged for purposes of arriving at a finding of probable cause, "only facts sufficient to support a prima facie case against the [accused] are required, not absolute certainty." In this case, the petitioners were charged with the crimes of Plunder and/or violations of Section 3 (e) of RA 3019. Plunder, defined and penalized under Section 2 of RA 7080, as amended, has the following elements: (a) that the offender is a public officer, who acts by himself or in connivance with members of his family, relatives by affinity or consanguinity, business associates, subordinates or other persons; (b) that he amasses, accumulates or acquires ill-gotten wealth through a combination or series of overt or criminal acts described in Section 1 (d) thereof; and (c) that the aggregate amount or total value of the ill-gotten wealth amassed, accumulated or acquired is at least Fifty Million Pesos (P50,000,000.00). On the other hand, the elements of violation of Section 3 (e)of RA 3019 are: (a) that the accused must be a public officer discharging administrative, judicial, or official functions (or a private individual acting in conspiracy with such public officers); (b) that he acted with manifest partiality, evident bad faith, or inexcusable negligence; and (c) that his action caused any undue injury to any party, including the government, or giving any private party unwarranted benefits, advantage, or preference in the discharge of his functions. In determining probable cause therefor, only a showing of the ostensible presence of these elements is required.
It should be borne in mind that probable cause is determined during the context of a preliminary investigation which is "merely an inquisitorial mode of discovering whether or not there is reasonable basis to believe that a crime has been committed and that the person charged should be held responsible for it." It "is not the occasion for the full and exhaustive display of the prosecution's evidence." Therefore, "the validity and merits of a party's defense or accusation, as well as the admissibility of testimonies and evidence, are better ventilated during trial proper than at the preliminary investigation level." Accordingly, "owing to the initiatory nature of preliminary investigations, the technical rules of evidence should not be applied in the course of its proceedings." In this light, and as will be elaborated upon below, this Court has ruled that "probable cause can be established with hearsay evidence, as long as there is substantial basis for crediting the hearsay," and that even an invocation of the rule on res inter alios acta at this stage of the proceedings is improper.
Guided by these considerations, the Court finds that the Ombudsman did not gravely abuse its discretion in finding probable cause to indict Sen. Revilla, Cambe, Napoles, De Asis, and Lim of one (1) count of Plunder, and all the petitioners, except Lim, of sixteen (16) counts of violation of Section 3 (e) of RA 3019.
PROBABLE
CAUSE AGAINST SEN REVILLA
Sen.
Revilla faults the Ombudsman for allegedly disregarding his defense of forgery,
and further contends that in the absence of other competent testimony, the
Ombudsman cannot consider the whistleblowers' testimonies who purportedly were
his co-conspirators in the PDAF scam, pursuant to the res inter alios
acta rule.
The petition holds no water.
The finding of probable cause against Sen. Revilla is amply supported by the evidence on record. At the forefront are the PDAF documents, consisting of the written endorsements signed by Sen. Revilla himself requesting the IAs to release his PDAF funds to the identified JLN-controlled NGOs, as well as other documents that made possible the processing of his PDAF, e.g., the MOAs executed by the legislator's office, the IA, and the chosen NGO. All these documents - even those not actually signed by Sen. Revilla - directly implicate him for the crimes charged, as they were nonetheless, all issued under the authority of his Office as Senator of the Republic of the Philippines.
The petition holds no water.
The finding of probable cause against Sen. Revilla is amply supported by the evidence on record. At the forefront are the PDAF documents, consisting of the written endorsements signed by Sen. Revilla himself requesting the IAs to release his PDAF funds to the identified JLN-controlled NGOs, as well as other documents that made possible the processing of his PDAF, e.g., the MOAs executed by the legislator's office, the IA, and the chosen NGO. All these documents - even those not actually signed by Sen. Revilla - directly implicate him for the crimes charged, as they were nonetheless, all issued under the authority of his Office as Senator of the Republic of the Philippines.
Anent
Sen. Revilla's claim that his signatures in the documentary evidence presented
were forged, it must be emphasized that "the findings of the x x x
prosecutor [on the issue of forgery] should be ventilated in a full-blown trial[.]
[This] is highlighted by the reality that the authenticity of a questioned
signature cannot be determined solely upon its general characteristics, or its
similarities or dissimilarities with the genuine signature. The duty
to determine the authenticity of a signature rests on the judge who must
conduct an independent examination of the signature itself in order to arrive
at a reasonable conclusion as to its authenticity. [As such],
Section 22 of Rule 132 of the Rules of Court explicitly authorizes the court,
by itself, to make a comparison of the disputed handwriting with writings
admitted or treated as genuine by the party against whom the evidence is
offered, or proved to be genuine."
Xxxx
Anent
Sen. Revilla's claim that his signatures in the documentary evidence presented
were forged, it must be emphasized that "the findings of the x x x
prosecutor [on the issue of forgery] should be ventilated in a full-blown trial[.]
[This] is highlighted by the reality that the authenticity of a questioned
signature cannot be determined solely upon its general characteristics, or its
similarities or dissimilarities with the genuine signature. The duty
to determine the authenticity of a signature rests on the judge who must
conduct an independent examination of the signature itself in order to arrive
at a reasonable conclusion as to its authenticity. [As such],
Section 22 of Rule 132 of the Rules of Court explicitly authorizes the court,
by itself, to make a comparison of the disputed handwriting with writings
admitted or treated as genuine by the party against whom the evidence is
offered, or proved to be genuine."
Xxxx
Sen.
Revilla opposes the admission of the whistleblowers' testimonies based on the res
inter alios acta rule. However, in Reyes, citing Estrada
v. Ombudsman, this Court had unanimously ruled that the testimonies of
the same whistleblowers against Jo Christine and John Christopher Napoles,
children of Janet Napoles who were also charged with the embezzlement of the
PDAF, are admissible in evidence, considering that technical rules of evidence
are not binding on the fiscal during preliminary investigation. This Court was
unequivocal in declaring that the objection on res inter alios acta should
falter:
Neither can the Napoles
siblings discount the testimonies of the whistleblowers based on their
invocation of the res inter alios acta rule under Section 28,
Rule 130 of the Rules on Evidence, which states that the rights of a party
cannot be prejudiced by an act, declaration, or omission of another, unless the
admission is by a conspirator under the parameters of Section 30 of the same
Rule. To be sure, the foregoing rule constitutes a technical rule on
evidence which should not be rigidly applied in the course of preliminary
investigation proceedings.
PROBABLE CAUSE AGAINST CAMBE
There is
no dispute that Cambe was Sen. Revilla's trusted aide, being his Chief of
Staff. By such authority, he also exercised operational control over the
affairs of Sen. Revilla's office, including the allocation of his PDAF. In
fact, Cambe's signatures explicitly appear on several PDAF documents, such as
the MOAs allowing the IAs to transfer Sen. Revilla's PDAF funds allocated for
certain projects to various JLN-controlled NGOs.166
Moreover, Cambe was personally identified by the whistleblowers to have received PDAF money for himself and for Sen. Revilla
Moreover, Cambe was personally identified by the whistleblowers to have received PDAF money for himself and for Sen. Revilla
PROBABLE
CAUSE AGAINST NAPOLES
Based on
the evidence in support thereof such as the PDAF documents, whistleblowers'
testimonies, the accounts of the IA officials, and the COA report, as well as
the field verifications of the FIO, Ombudsman, this Court is convinced that
there lies probable cause against Janet Napoles for the charge of Plunder as it
has been prima facie established that she, in conspiracy with
Sen. Revilla, Cambe, and other personalities, was significantly involved in the
afore-described modus operandi to obtain Sen. Revilla's PDAF
amounting to at least P50,000,000.00 in "kickbacks." In the same
manner, there is probable cause against Napoles for violations of Section 3 (e)
of RA 3019, as it is ostensible that their conspiracy to illegally divert PDAF
Funds to "ghost" projects caused undue prejudice to the government.
That a private individual, such as Napoles, could not be charged for Plunder and violations of Section 3 (e) of RA 3019 because the offenders in those crimes are public officers is a complete misconception. It has been long-settled that while the primary offender in the aforesaid crimes are public officers, private individuals may also be held liable for the same if they are found to have conspired with said officers in committing the same. This proceeds from the fundamental principle that in cases of conspiracy, the act of one is the act of all.
That a private individual, such as Napoles, could not be charged for Plunder and violations of Section 3 (e) of RA 3019 because the offenders in those crimes are public officers is a complete misconception. It has been long-settled that while the primary offender in the aforesaid crimes are public officers, private individuals may also be held liable for the same if they are found to have conspired with said officers in committing the same. This proceeds from the fundamental principle that in cases of conspiracy, the act of one is the act of all.
PROBABLE
CAUSE AGAINST DE ASIS
Records show that De Asis was designated as the President/Incorporator of KPMFI which was one of the many NGOs controlled by Napoles that was used in the embezzlement of Sen. Revilla's PDAF allocations. Moreover, whistleblowers Luy and Suñas explicitly n,amed De Asis as one of those who prepared money to be given to the lawmaker.
Records show that De Asis was designated as the President/Incorporator of KPMFI which was one of the many NGOs controlled by Napoles that was used in the embezzlement of Sen. Revilla's PDAF allocations. Moreover, whistleblowers Luy and Suñas explicitly n,amed De Asis as one of those who prepared money to be given to the lawmaker.
xxx
To
refute the foregoing allegations, De Asis presented defenses which heavily
centered on his perceived want of criminal intent, as well as the alleged
absence of the elements of the crimes charged. However, such defenses are
evidentiary in nature, and thus, are better ventilated during trial and not
during preliminary investigation. To stress, a preliminary investigation is not
the occasion for the full and exhaustive display of the prosecution's evidence
PROBABLE
CAUSE AGAINST LIM
The
preparation and delivery of kickbacks to the legislator and/or his trusted
staff are indeed overt acts that relate to his involvement in the PDAF scheme.
To note, even if it is assumed that Lim only prepared the money and did not
deliver the same as he claims, the act of preparation is still
connected to the common objective of the conspiracy.
PROBABLE CAUSE AGAINST RELAMPAGOS ET. AL
whistleblower
Luy positively identified Relampagos, et al. as Napoles's
"contact persons" in the DBM; and (b) the COA Report found
irregularities in their issuances of the aforesaid SAROs and NCAs.182 Ostensibly,
these circumstances show Relampagos et al.'s manifest partiality
and bad faith in favor of Napoles and her cohorts that evidently caused undue
prejudice to the Government. Thus, they must stand trial for violation of
Section 3 (e) of RA 3019.
CONCLUSION
the
Ombudsman (and the Sandiganbayan as to Relampagos, et
al.) did not err in finding probable cause against all the petitioners.
Their findings are fully supported by the evidence on record and no semblance
of misapprehension taints the same. Moreover, this Court cannot tag key
documentary evidence as forgeries and bar testimonies as hearsay at this stage
of the proceedings; otherwise, it would defy established principles and norms
followed during preliminary investigation. Jurisprudence teaches us that
"[i]n dealing with probable cause[,] athe very name implies, we deal with
probabilities. These are not technical; they are the factual and practical
considerations of everyday life on which reasonable and prudent men, not legal
technicians, act. The standard of proof is accordingly correlative to what must
be proved."188 Overall, based on the foregoing disquisitions,
the standard of probable cause was adequately hurdled by the prosecution in
this case. As such, no grave abuse of discretion was committed by the Ombudsman
and the Sandiganbayan in the proceedings a quo.
All the petitioners should therefore stand trial for the crimes they were
charged.