THE BOARD OF TRUSTEES OF THE GOVERN GOVERNME MENT NT SERV SERVICE ICE INSURA INSURANCE NCE SYSTEM and WINSTON F. GARCIA, in his capacit as GSIS !"#sid#nt and G#n#"a$ Mana%#" , Petitioners, - versus -
A&BERT M. VE&ASCO and MARIO I. MO&INA , Respondents.
G.R. N'. ()*+Present: CARPIO, J ., ., Chairperson, NACHURA, PERALTA, ABA, and !ENO"A, JJ !ENO"A, JJ .
Pro#u$%ated: &e'ruar( ), )*++
-------------------------------------------------- DECISION
CAR!IO, J. Th# Cas# This is a petition or revie + o the )/ 0epte#'er )**/ e1ision ) and the 2 O1to'er )**3 Order 4 o the Re%iona$ Tria$ Court o !ani$a, Bran1h +5 6tria$ 1ourt7, 1ourt7, in Civi$ Case No. *4-+*8485. *4-+*8485. In its )/ 0epte#'er 0epte#'er )**/ e1ision, e1ision, the tria$ 1ourt %ranted respondent respondents s A$'ert A$'ert !. 9e$as1o 9e$as1o / and !ario I. 3 !o$inas 6respondents7 petition or prohi'ition. In its 2 O1to'er )**3 Order, the tria$ 1ourt denied petitioners Board o Trustees o the ;overn#ent 0ervi1e Insuran1e 0(ste# 6;0I07 and u re>ues este ted d ;0I0 ;0I0 0eni 0enior or 9i1e 9i1e Pres Presid iden entt Con1 Con1ep ep1i 1ion on L. !adaran% 609P !adaran%7 or the i#p$e#entation o his step in1re#ent . 8 On )) Apri$ )**4, 09P !adaran% denied the re>uest 1itin% ;0I0 Board Reso$ution No. 42) 6Reso$ution No. 42)7 5 issued '( petitioner Board o Trustees o the ;0I0 6petitioner ;0I0 Board7 hi1h approved the ne ;0I0 sa$ar( stru1ture, its i#p$e#entin% ru$es and re%u$ations, and the adoption o the supp$e#enta$ %uide$ines on step in1re#ent and pro#otion. +* The pertinent provision o Reso$ution No. 42) provides: A. 0tep In1re#ent In1re#ent III. 0pe1ii1 Ru$es: 4. The step in1re#ent ad?ust#ent o an e#p$o(ee ho is on preventive suspension sha$$ 'e ithhe$d unti$ su1h ti#e that a de1ision on the 1ase has 'een rendered. Respondents a$so as@ed that the( 'e a$$oed to avai$ o the e#p$o(ee privi$e%es under ;0I0 Board Reso$ution No. 4*= 6Reso$ution No. 4*=7 approvin% Christ#as ra$e 'eneits or a$$ ;0I0 oi1ia$s and e#p$o(ees ee1tive (ear )**). ++ Respondents re>uest as a%ain denied 'e1ause o their pendin% ad#inistrative 1ase. On )2 Au%ust )**4, petitioner ;0I0 Board issued Board Reso$ution No. +52 6Reso$ution No. +527 approvin% the o$$oin% po$i1( re1o##endations: B. On the dis>ua$ii1ation ro# pro#otion o an e#p$o(ee ith a pendin% ad#inistrative 1ase To adopt the po$i1( that an e#p$o(ee ith pendin% ad#inistrative 1ase sha$$ 'e dis>ua$iied ro# the o$$oin% durin% the penden1( o the 1ase: a7 Pro#otion '7 0tep In1re#ent 17 Peror#an1e-Based Bonus and d7 Other 'eneits and privi$e%es. On +/ Nove#'er )**4, respondents i$ed 'eore the tria$ 1ourt a petition or prohi'ition ith pra(er or a rit o pre$i#inar( in?un1tion. +) Respondents 1$ai#ed that the( ere denied the 'eneits hi1h ;0I0 e#p$o(ees ere entit$ed under Reso$ution No. 4*=. Respondents a$so sou%ht to restrain and prohi'it petitioners ro# i#p$e#entin% Reso$ution Nos. +52 and 42). Respondents 1$ai#ed that the denia$ o the e#p$o(ee 'eneits due the# on the %round o their pendin% ad#inistrative 1ases vio$ates their ri%ht to 'e presu#ed inno1ent and that the( are 'ein% punished ithout hearin%. Respondent !o$ina a$so added that he had a$read( earned his ri%ht to the step in1re#ent 'eore Reso$ution No. 42) as ena1ted. Respondents a$so ar%ued that the three reso$utions ere inee1tive 'e1ause the( ere not re%istered ith the Universit( o the Phi$ippines 6UP7 La Center pursuant to the Revised Ad#inistrative Code o +582.+4 On )/ Nove#'er )**4, petitioners i$ed their 1o##ent ith #otion to dis#iss and o pposition. pposition . +/ On ) e1e#'er )**4, respondents i$ed their opposition +3 += to the #otion to dis#iss . On 3 e1e#'er )**4, petitioners i$ed their rep$(. rep$(. On += anuar( )**/, the tria$ 1ourt denied petitioners #otion to dis#iss and %ranted respondents pra(er or a rit o pre$i#inar( in?un1tion. +2 Petitioners i$ed a #otion or re1onsideration. re1onsideration .+8 In its )= &e'ruar( )**/ Order, the tria$ 1ourt denied petitioners #otion. #otion .+5 In its )/ 0epte#'er )**/ e1ision, the tria$ 1ourt %ranted respondents petition or prohi'ition. The dispositive portion o the )/ 0epte#'er )**/ e1ision provides:
Th# R/$in% '0 th# T"ia$ C'/"t On the issue o ?urisdi1tion, the tria$ 1ourt said it 1an ta@e 1o%nian1e o the petition 'e1ause the Dterritoria$ area reerred to in 0e1tion /, Ru$e =3 o the Ru$es o Court Ddoes not ne1essari$( de$i#it to a parti1u$ar $o1a$it( 'ut rather to the ?udi1ia$ re%ion here the oi1e or a%en1( is situated so that the prohi'itive rit 1an 'e enor1ed.
On the #erits o the 1ase, the tria$ 1ourt ru$ed that respondents ere entit$ed to a$$ e#p$o(ee 'eneits as provided under the $a '( reason o their e#p$o(#ent. A11ordin% to the tria$ 1ourt, to den( respondents these e#p$o(ee 'eneits or the reason a$one that the( have pendin% ad#inistrative 1ases is un?ustiied sin1e it ou$d deprive the# o hat is $e%a$$( due the# ithout due pro1ess o $a, in$i1t punish#ent on the# ithout hearin%, and vio$ate their ri%ht to 'e presu#ed inno1ent. The tria$ 1ourt a$so ound that the assai$ed reso$utions ere not re%istered ith the UP La Center, per 1ertii1ation o the Oi1e o the Nationa$ Ad#inistrative Re%ister 6ONAR7. )+ 0in1e the( ere not re%istered, the tria$ 1ourt de1$ared that the assai$ed reso$utions have not 'e1o#e ee1tive 1itin% 0e1tions 4 and /, Chapter ), Boo@ 2 o the Revised Ad#inistrative Code o +582 .)) Th# Iss/#s Petitioners raise the o$$oin% issues: I uasi-$e%is$ative and ad#inistrative un1tions in Pasa( Cit( is outside the territoria$ ?urisdi1tion o RTC-!ani$a, Bran1h +5. III uire pu'$i1ation ith the Oi1e o the Nationa$ FAd#inistrativeG Re%ister or their e e1tivit(, 1ontrar( to the 1on1$usion o the RTC-!ani$a, Bran1h +5. I9 ua$iies %overn#ent e#p$o(ees ho have pendin% ad#inistrative 1ases ro# the %rant o step in1re#ent and Christ#as ra$e 'eneits is un1onstitutiona$. 9
Th# R/$in% '0 th# C'/"t The petition is part$( #eritorious. Petitioners ar%ue that the Civi$ 0ervi1e Co##ission 6C0C7, not the tria$ 1ourt, has ?urisdi1tion over Civi$ Case No. *4-+*8485 'e1ause it invo$ves 1$ai#s o e#p$o(ee 'eneits. Petitioners point out that the tria$ 1ourt shou$d have dis#issed the 1ase or $a1@ o ?urisdi1tion. 0e1tions ) and /, Ru$e =3 o the Ru$es o Court provide: 0e1. ). Petition for Prohibition. - < hen the pro1eedin%s o an( tri'una$, 1orporation, 'oard, oi1er or person, hether eer1isin% ?udi1ia$, >uasi ?udi1ia$ or #inisteria$ un1tions, are ithout or in e1ess o its ?urisdi1tion, or ith %rave a'use o dis1retion a#ountin% to $a1@ or e1ess o ?urisdi1tion, and there is no appea$ or an( other p$ain, speed(, and ade>uate re#ed( in the ordinar( 1ourse o $a, a person a%%rieved there'( #a( i$e a veriied petition in the proper 1ourt, a$$e%in% the a1ts ith 1ertaint( and p"ain% that 1/d%2#nt 3# "#nd#"#d c'22andin% th# "#sp'nd#nt t' d#sist 0"'2 0/"th#" p"'c##din%s in th# acti'n '" 2att#" sp#ci0i#d th#"#in , or otherise %rantin% su1h in1identa$ re$ies as $a and ?usti1e #a( re>uire. 0e1. /. Where petition filed . - The petition #a( 'e i$ed not $a ter than sit( 6=*7 da(s ro# noti1e o the ?ud%#ent, order or reso$ution sou%ht to 'e assai$ed in the 0upre#e Court or, i0 it "#$at#d t' acts '" '2issi'ns '0 a $'4#" c'/"t '" '0 a c'"p'"ati'n, 3'a"d, '00ic#" '" p#"s'n in th# R#%i'na$ T"ia$ C'/"t #5#"cisin% 1/"isdicti'n '6#" th# t#""it'"ia$ a"#a as d#0in#d 3 th# S/p"#2# C'/"t . It #a( a$so 'e i$ed in the Court o Appea$s hether or not the sa#e is in aid o its appe$$ate ?urisdi1tion, or in the0andi%an'a(an i it is in aid o its ?urisdi1tion. I it invo$ves the a1ts or o#issions o a >uasi-?udi1ia$ a%en1(, and un$ess otherise provided '( $a or these Ru$es, the petition sha$$ 'e i$ed in and 1o%nia'$e on$( '( the Court o Appea$s. 6E#phasis supp$ied7
Civi$ Case No. *4-+*8485 is a petition or prohi'ition ith pra(er or the issuan1e o a rit o pre$i#inar( in?un1tion. Respondents pra(ed that the tria$ 1ourt de1$are a$$ a1ts e#anatin% ro# Reso$ution Nos. 42), +52, and 4*= void and to prohi'it petitioners ro# urther enor1in% the said reso$utions.)/ Thereore, the tria$ 1ourt, not the C0C, has ?urisdi1tion over respondents petition or prohi'ition. Petitioners a$so 1$ai# that the petition or prohi'ition as i$ed in the ron% territoria$ ?urisdi1tion 'e1ause the a1ts sou%ht to 'e prohi'ited a re the a1ts o petitioners ho ho$d their prin1ipa$ oi1e in Pasa( Cit(, hi$e the petition or prohi'ition as i$ed in !ani$a.
0e1tion +8 o Batas Pa#'ansa B$%. +)5 6BP +)57 )3 provides: 0EC. +8. Authority to define territory appurtenant to each branch. - Th# S/p"#2# C'/"t sha$$ d#0in# th# t#""it'" '6#" 4hich a 3"anch '0 th# R#%i'na$ T"ia$ C'/"t sha$$ #5#"cis# its a/th'"it. Th# t#""it'" th/s d#0in#d sha$$ 3# d##2#d t' 3# th# t#""it'"ia$ a"#a '0 th# 3"anch c'nc#"n#d 0'" p/"p's#s '0 d#t#"2inin% th# 6#n/# '0 a$$ s/its, p"'c##din%s '" acti'ns, 4h#th#" ci6i$ '" c"i2ina$, as e$$ as deter#inin% the !etropo$itan Tria$ Courts, !uni1ipa$ Tria$ Courts, and !uni1ipa$ Cir1uit Tria$ Courts over hi1h the said 'ran1h #a( eer1ise appe$$ate ?urisdi1tion. The poer herein %ranted sha$$ 'e eer1ised ith a vie to #a@in% the 1ourts readi$( a11essi'$e to the peop$e o the dierent parts o the re%ion and #a@in% attendan1e o $iti%ants and itnesses as inepensive as possi'$e. 6E#phasis supp$ied7
In $ine ith this, the 0upre#e Court issued Ad#inistrative Order No. 4 )= deinin% the territoria$ ?urisdi1tion o the re%iona$ tria$ 1ourts in the Nationa$ Capita$ udi1ia$ Re%ion, as o$$os: a. Bran1hes I to LII, in1$usive, ith seats at !ani$a over the Cit( o !ani$a on$(. '. Bran1hes LIII to C9II, in1$usive, ith seats at Jueon Cit( over Jueon Cit( on$(. 1. Bran1hes C9III to CI, in1$usive, ith seats at Pasa( Cit( over Pasa( Cit( on$(. The petition or prohi'ition i$ed '( respondents is a spe1ia$ 1ivi$ a1tion hi1h #a( 'e i$ed in the 0upre#e Court, the Court o Appea$s, the 0andi%an'a(an or the re%iona$ tria$ 1ourt, as the 1ase #a( 'e. )2 It is a$so a persona$ a1tion 'e1ause it does not ae1t the tit$e to, or possession o rea$ propert(, or interest therein. Thus, it #a( 'e 1o##en1ed and tried here the p$ainti or a n( o the prin1ipa$ p$aintis resides, or here the deendant or an( o the prin1ipa$ deendants resides, at the e$e1tion o the p$ainti. )8 0in1e respondent 9e$as1o, p$ainti 'eore the tria$ 1ourt, is a resident o the Cit( o !ani$a, )5 the petition 1ou$d proper$( 'e i$ed in the Cit( o !ani$a .4* The 1hoi1e o venue is san1tioned '( 0e1tion ), Ru$e / o the Ru$es o Court.
!oreover, 0e1tion )+6+7 o BP +)5 provides: 0e1. )+. Original jurisdiction in other cases. - Re%iona$ Tria$ Courts sha$$ eer1ise ori%ina$ ?urisdi1tion: 6+7 In the issuan1e o 4"its '0 certiorari , p"'hi3iti'n, mandamus, quo warranto, habeas corpus and in1/ncti'n, 4hich 2a 3# #n0'"c#d in an pa"t '0 th#i" "#sp#cti6# "#%i'ns 6E#phasis supp$ied7 0in1e the Nationa$ Capita$ udi1ia$ Re%ion is 1o#prised o the 1ities o !ani$a, Jueon, Pasa(, Ca$oo1an, !a$a'on, !anda$u(on%, !a@ati, Pasi%, !ari@ina, ParaKa>ue, Las PiKas, !untin$upa, and 9a$enue$a and the #uni1ipa$ities o Navotas, 0an uan, Pateros, and Ta%ui%, a rit o prohi'ition issued '( the re%iona$ tria$ 1ourt sittin% in the Cit( o !ani$a, is enor1ea'$e in Pasa( Cit(. C$ear$(, the RTC did not err hen it too@ 1o%nian1e o respondents petition or prohi'ition 'e1ause it had ?urisdi1tion over the a1tion and the venue as proper$( $aid 'eore it. Petitioners a$so ar%ue that Reso$ution Nos. 42), +52, and 4*= need not 'e i$ed ith the UP La Center ONAR sin1e the( are, at #ost, re%u$ations hi1h are #ere$( interna$ in nature re%u$atin% on$( the personne$ o the ;0I0 and not the pu'$i1. Not a$$ ru$es and re%u$ations adopted '( ever( %overn#ent a%en1( are to 'e i$ed ith the UP La Center. On$( those o %enera$ or o per#anent 1hara1ter are to 'e i$ed. A11ordin% to the UP La Centers %uide$ines or re1eivin% and pu'$i1ation o ru$es and re%u$ations, Dinterpretative re%u$ations and those #ere$( interna$ in nature, that is, re%u$atin% on$( the personne$ o the Ad#inistrative a%en1( and not the pu'$i1, need not 'e i$ed ith the UP La Center. Reso$ution No. 42) as a'out the ne ;0I0 sa$ar( stru1ture, Reso$ution No. 4*= as a'out the authorit( to pa( the )**) Christ#as Pa1@a%e, and Reso$ution No. +52 as a'out the ;0I0 #erit se$e1tion and pro#otion p$an. C$ear$(, the assai$ed reso$utions pertained on$( to interna$ ru$es #eant to re%u$ate the personne$ o the ;0I0. There as no need or the pu'$i1ation or i$in% o these reso$utions ith the UP La Center. Petitioners insist that petitioner ;0I0 Board has the poer to issue the assai$ed reso$utions. A11ordin% to petitioners, it as ithin the poer o petitioner ;0I0 Board to dis>ua$i( respondents or step in1re#ent and ro# re1eivin% ;0I0 'eneits ro# the ti#e or#a$ ad#inistrative 1har%es ere i$ed a%ainst the# unti$ the 1ases are reso$ved. The Court notes that the tria$ 1ourt on$( de1$ared Reso$ution Nos. +52 and 42) void. The tria$ 1ourt #ade no ru$in% on Reso$ution No. 4*= and respondents did not appea$ this #atter. Thereore, e i$$ $i#it our dis1ussion to Reso$ution Nos. +52 and 42), parti1u$ar$( to the ee1ts o preventive suspension on the %rant o step i n1re#ent 'e1ause this as hat respondents raised 'eore the tria$ 1ourt. &irst, entit$e#ent to step in1re#ent depends on the ru$es re$ative to the %rant o su1h 'eneit. In point are 0e1tion +6'7, Ru$e II and 0e1tion ), Ru$e III o oint Cir1u$ar No. +, series o +55*, hi1h provide: Ru$e II. 0e$e1tion Criteria 0e1tion +. 0tep in1re#ents sha$$ 'e %ranted to a$$ deservin% oi1ia$s and e#p$o(ees 6'7 Len%th o 0ervi1e &or those ho have rendered 1ontinuous satisa1tor( servi1e in a parti1u$ar position or at $east three 647 (ears. Ru$e III. 0tep In1re#ents 0e1tion ). Len%th o 0ervi1e A one 6+7 step in1re#ent sha$$ 'e %ranted oi1ia$s and e#p$o(ees or ever( three 647 (ears o 1ontinuous satisa1tor( servi1e in the position. ears o servi1e in the position sha$$ in1$ude the o$$oin%: 6a7 Those rendered 'eore the position as re1$assiied to a position tit$e ith a $oer or the sa#e sa$ar( %rade a$$o1ation and 6'7 Those rendered 'eore the in1u#'ent as transerred to another position ithin the sa#e a%en1( or to another a%en1( ithout a 1han%e in position tit$e and sa$ar( %rade a$$o1ation. In the initia$ i#p$e#entation o step in1re#ents in +55*, an in1u#'ent sha$$ 'e %ranted step in1re#ents e>uiva$ent to one 6+7 step or ever( three 647 (ears o 1ontinuous satisa1tor( servi1e in a %iven position o11upied as o anuar( +, +55*.
A %rant o step in1re#ent on the 'asis o $en%th o servi1e re>uires that an e#p$o(ee #ust have rendered at $east three (ears o 1ontinuous and satisa1tor( servi1e in the sa#e position to hi1h he is an in1u#'ent. 4+ To deter#ine hether servi1e is 1ontinuous, it is ne1essar( to deine hat a1tua$ servi1e is.4) DA1tua$ servi1e reers to the period o 1ontinuous servi1e sin1e the appoint#ent o the oi1ia$ or e#p$o(ee 1on1erned, in1$udin% the period or periods 1overed '( an( previous$( approved $eave ith pa(.44 0e1ond, hi$e there are no spe1ii1 ru$es on the ee1ts o preventive suspension on step in1re#ent, e 1an reer to the C0C ru$es and ru$in%s on the ee1ts o the pena$t( o suspension and approved va1ation $eaves ithout pa( on the %rant o step in1re#ent or %uidan1e. 0e1tion 3=6d7, Ru$e I9 o the Unior# Ru$es on Ad#inistrative Cases in the Civi$ 0ervi1e provides: 0e1tion 3=. Duration and effect of administrative penalties. - The o$$oin% ru$es sha$$ %overn in the i#position o ad#inistrative pena$ties: 6d7 The pena$t( o suspension sha$$ resu$t in the te#porar( 1essation o or@ or a period not e1eedin% one 6+7 (ear. 0uspension o one da( or #ore sha$$ 'e 1onsidered a %ap in the 1ontinuit( o servi1e. urin% the period o suspension, respondent sha$$ not 'e entit$ed to a$$ #one( 'eneits in1$udin% $eave 1redits. I an e#p$o(ee is suspended as a pena$t(, it ee1tive$( interrupts the 1ontinuit( o his %overn#ent servi1e at the 1o##en1e#ent o the servi1e o the said suspension. This is 'e1ause a person under pena$t( o suspension is not renderin% a1tua$ servi1e. The suspension i$$ undou'ted$( 'e 1onsidered a %ap in the 1ontinuit( o the servi1e or purposes o the 1o#putation o the three (ear period in the %rant o step in1re#ent. 4/ Hoever, this does not #ean that the e#p$o(ee i$$ on$( 'e entit$ed to the step in1re#ent ater 1o#p$etin% another three (ears o 1ontinuous satisa1tor( servi1e re1@oned ro# the ti#e the e#p$o(ee has u$$( served the pena$t( o suspension . 43 The C0C has ta@en this to #ean that the 1o#putation o the three (ear period re>uire#ent i$$ on$( 'e etended '( the nu#'er o da(s that the e#p$o(ee as under suspension . 4= In other ords, the %rant o step in1re#ent i$$ on$( 'e de$a(ed '( the sa#e nu#'er o da(s that the e#p$o(ee as under suspension. This is a@in to the status o an e#p$o(ee ho in1urred va1ation $eave ithout pa( or purposes o the %rant o step in1re#ent. 42 E#p$o(ees ho ere on approved va1ation $eave ithout pa( en?o( the $i'era$ app$i1ation o the ru$e on the %rant o step in1re#ent under 0e1tion =* o C0C !e#orandu# Cir1u$ar No. /+, series o +558, hi1h provides: 0e1tion =*. Ee1t o va1ation $eave ithout pa( on the %rant o $en%th o servi1e step in1re#ent. - &or purposes o 1o#putin% the $en%th o servi1e or the %rant o step in1re#ent, approved va1ation $eave ithout pa( or an a%%re%ate o iteen 6+37 da(s sha$$ not interrupt the 1ontinuit( o the three-(ear servi1e re>uire#ent or the %rant o step in1re#ent. Hoever, i the tota$ nu#'er o authoried va1ation $eave ithout pa( in1$uded ithin the three-(ear period e1eeds iteen 6+37 da (s, the %rant o one-step in1re#ent 4i$$ 'n$ 3# d#$a#d 0'" th# sa2# n/23#" '0 das that an '00icia$ '" #2p$'## 4as a3s#nt 4ith'/t pa. 6E#phasis supp$ied7 Third, on preventive suspension, 0e1tions 3+ and 3), Chapter 2, 0u'tit$e A, Tit$e I, Boo@ 9 o the Revised Ad#inistrative Code o +582 provide: 0EC. 3+. Preventive uspension. - The proper dis1ip$inin% authorit( #a( preventive$( suspend an( su'ordinate oi1er or e#p$o(ee under his authorit( pendin% an investi%ation, i the 1har%e a%ainst su1h oi1er or e#p$o(ee invo$ves dishonest(, oppression or %rave #is1ondu1t, or ne%$e1t in the peror#an1e o dut(, or i there are reasons to 'e$ieve that the respondent is %ui$t( o 1har%es hi1h ou$d arrant his re#ova$ ro# the servi1e. 0EC. 3). !ifting of Preventive uspension. Pending Administrative "nvestigation . - Wh#n th# ad2inist"ati6# cas# a%ainst th# '00ic#" '" #2p$'## /nd#" p"#6#nti6# s/sp#nsi'n is n't 0ina$$ d#cid#d 3 th# discip$inin% a/th'"it 4ithin th# p#"i'd '0 nin#t 78*9 das a0t#"
th# dat# '0 s/sp#nsi'n '0 th# "#sp'nd#nt 4h' is n't a p"#sid#ntia$ app'int##, th# "#sp'nd#nt sha$$ 3# a/t'2atica$$ "#instat#d in th# s#"6ic#: Provided , That hen the de$a( in the disposition o the 1ase is due to the au$t, ne%$i%en1e or petition o the respondent, the period o de$a( sha$$ not 'e 1ounted in 1o#putin% the period o suspension herein provided. 6E#phasis supp$ied7 Preventive suspension pendin% investi%ation is not a pena$t(. 48 It is a #easure intended to ena'$e the dis1ip$inin% authorit( to investi%ate 1har%es a%ainst respondent '( preventin% the $atter ro# inti#idatin% or in an( a( in$uen1in% itnesses a%ainst hi#. 45 I the investi%ation is not inished and a de1ision is not rendered ithin that period, the suspension i$$ 'e $ited and the respondent i$$ auto#ati1a$$( 'e reinstated. Thereore, on the #atter o step in1re#ent, i an e#p$o(ee ho as suspended as a pena$t( i$$ 'e treated $i@e an e#p$o(ee on approved va1ation $eave ithout pa(,/*then it is on$( air and reasona'$e to app$( the sa#e ru$es to an e#p$o(ee ho as preventive$( suspended, #ore so 1onsiderin% that preventive suspension is not a pena$t(. I an e#p$o(ee is preventive$( suspended, the e#p$o(ee is not renderin% a1tua$ servi1e and this i$$ a$so ee1tive$( interrupt the 1ontinuit( o his %overn#ent servi1e. Conse>uent$(, an e#p$o(ee ho as preventive$( suspended i$$ sti$$ 'e entit$ed to step in1re#ent ater servin% the ti#e o his preventive suspension even i the pendin% ad#inistrative 1ase a%ainst hi# has not (et 'een reso$ved or dis#issed. The %rant o step in1re#ent i$$ on$( 'e de$a(ed or the sa#e nu#'er o da(s, hi1h #ust not e1eed 5* da(s, that an oi1ia$ or e#p$o(ee as servin% the preventive suspension. &ourth, the tria$ 1ourt as 1orre1t in de1$arin% that respondents had the ri%ht to 'e presu#ed inno1ent unti$ proven %ui$t(. This #eans that an e#p$o(ee ho has a pendin% ad#inistrative 1ase i$ed a%ainst hi# is %iven the 'eneit o the dou't and is 1onsidered inno1ent unti$ the 1ontrar( is proven. /+ In this 1ase, respondents ere p$a1ed under preventive suspension or 5* da(s 'e%innin% on )4 !a( )**). Their preventive suspension ended on )+ Au%ust )**). Thereore, ater servin% the period o their preventive suspension and ithout the ad#inistrative 1ase 'ein% ina$$( reso$ved, respondents shou$d have 'een reinstated and, ater servin% the sa#e nu#'er o da(s o their suspension, entit$ed to the %rant o step in1re#ent. On a ina$ note, so1ia$ $e%is$ation $i@e the 1ir1u$ar on the %rant o step in1re#ent, 'ein% re#edia$ in 1hara1ter, shou$d 'e $i'era$$( 1onstrued and ad#inistered in avor o the persons to 'e 'eneited. The $i'era$ approa1h ai#s to a1hieve hu#anitarian purposes o the $a in order that the ei1ien1(, se1urit( and e$$-'ein% o %overn#ent e#p$o(ees #a( 'e enhan1ed. /) WHEREFORE, e DENY the petition.
ANTONIO T. CAR!IO Asso1iate usti1e
WE CONCUR:
ANTONIO EDUARDO B. NACHURA Asso1iate usti1e
DIOSDADO M. !ERA&TA ROBERTO A. ABAD Asso1iate usti1e Asso1iate usti1e
:OSE C. MENDO;A Asso1iate usti1e ATTESTATION I attest that the 1on1$usions in the a'ove e1ision had 'een rea1hed in 1onsu$tation 'eore the 1ase as assi%ned to the riter o the opinion o the Courts ivision.
ANTONIO T. CAR!IO Asso1iate usti1e Chairperson CERTIFICATION Pursuant to 0e1tion +4, Arti1$e 9III o the Constitution, and the ivision Chairpersons Attestation, I 1erti( that the 1on1$usions in the a'ove e1ision had 'een rea1hed in 1onsu$tation 'eore the 1ase as assi%ned to the riter o the opinion o the Courts ivision.
RENATO C. CORONA Chie usti1e
