Republic of the Philippines Manila FIRST DIVISION
SUPREME
COURT
G.R G.R. Nos. Nos. !"! !"!!# !#! ! Sept Septe$ e$be be%% &' &' &(() &(() PABLO ARIZALA, SERGIO MARIBAO, LEONARDO JOVEN, JOVEN, and FELINO FELINO BULANDUS, BULANDUS, petitioners, petitioners, vs !"E #OUR! OF APPEALS and !"E PEOPLE OF !"E P"ILIPPINES, respondents *anua%io T. T. Seno fo% petitione%s. petitione%s. N+RV+S+' *., Un-e% the In-ust%ial Peace +ct' & o/e%n$ent#o0neo% cont%olle cont%olle- co%po%ati co%po%ations ons ha- the -ut1 to ba%ain ba%ain coll collec ecti ti/e /el1 l1 anan- 0e 0e%e %e othe othe%0 %0is ise e sub2 sub2ec ectt to the the obliation obliations s an- -uties of e$plo1e%s e$plo1e%s in the p%i/ate p%i/ate secto% secto%.. 3 The +ct +ct also also p%ohi p%ohibit bitee- supe%/ supe%/iso iso%s %s to beco beco$e $e'' o% cont contin inue ue to be' be' $e $e$b $be% e%s s of labo labo%% o%ani4ations co$pose- of %an5#an-#6le e$plo1ees' ! an- p%esc%ibe- c%i$inal sanctions fo% b%each of the p%ohibition.
$o/e- fo% %econsi-e%ation. The1 a%ue- that 0hen the so callecalle- :&(@! :&(@! Consti Constitut tution ion:: too5 too5 eBe eBect ct on *anua%1 &@' &(@! pu%suant to P%ocla$ation No. &&)' the case of +%i4ala an- Ma%ibao 0as still pen-in in the Cou%t of +ppeals an- that of *o/en an-
abo% Co-e subse?uen subse?uentl1 tl1 p%o$ula p%o$ulatete- 7eB.' 7eB.' No/e$be% No/e$be% &' &(@8 &(@8'' %epeal %epealin in the In-ust In-ust%ia %iall Peace eace +ct#p +ct#plac laceee$plo1ees of all cateo%ies in o/e%n$ent#o0ne- o% cont%olle- co%po%ations 0ithout -istinction 0ithin the Ci/i Ci/ill Se%/ Se%/ic ice' e' anan- p%o/ p%o/ii-ee- that that the the te%$ te%$s s anancon-itions of thei% e$plo1$ent 0e%e to be :o/e%neb1 the Ci/il Se%/ice >a0' %ules an- %eulations: anhence' no lone% sub2ect of collecti/e ba%ainin' the appellants cease- to fall 0ithin the co/e%ae of the In-u In-ust st%i %ial al Peace eace +ct +ct anan- shou shoull- thus thus no lon lone% e% continue to be p%osecute- an- e9pose- to punish$ent fo% a /iolation the%eof. The1 pointe- out fu%the% fu%the% that the c%i$inal c%i$inal sanction in the In-ust%ial In-ust%ial Peace +ct no lone% appea%e- in the >abo% Co-e. The +ppellate Cou%t -enie- thei% plea fo% %econsi-e%ation. %econsi-e%ation. ence' the p%esent petition fo% %e/ie0 on ce%tio%a%i.
It 0as un-e% the %ei$e of sai- In-ust%ial Peace +ct that that the the Go Go/e /e%n %n$e $ent nt Se%/ Se%/ic ice e Insu Insu%a %anc nce e S1st S1ste$ e$ 7GSI 7GSIS' S' fo% fo% sho% sho%t8 t8 beca beca$e $e boun boun- b1 a coll collec ecti ti/e /e ba%ainin a%ee$ent e9ecute- bet0een it an- the labo% o%ani4ation o%ani4ation %ep%esentin %ep%esentin the $a2o%it1 $a2o%it1 of its e$plo1 e$plo1ees ees'' the GSIS GSIS E$plo1 E$plo1ees ees +ssoci +ssociati ation. on. The a%ee$ent containea :$aintenance#of #of# $e$be%ship: clause' ; i.e.' that all e$plo1ees 0ho' at the ti$e of the e9ecution of sai- a%ee$ent' 0e%e $e$b $e $be% e%s s of the union ion o% bec beca$ a$e e $e $e$ $be%s e%s the%ea the%eafte fte%' %' 0e%e 0e%e oblie oblie- to $aint $aintain ain thei% thei% union union $e$be%ship in oo- stan-in fo% the -u%ation of the a%e a%ee$ e$en entt as a concon-it itio ion n fo% fo% thei thei%% cont contin inue uee$plo1$ent in the GSIS. The%e appea%s to be no -ispute that at that ti$e' the petiti petition one%s e%s occupi occupiee- supe%/ supe%/iso iso%1 %1 positi positions ons in the the GSIS GSIS.. Pablo ablo +%i4 +%i4al ala a anan- Se% Se%io io Ma%i Ma%iba bao o 0e 0e%%e' %especti/ %especti/el1' el1' the Chief Chief of the +ccounti +ccountin n Di/ision' Di/ision' an- the Chief of the eon eona%-o %-o *o/ *o/en anan- Felin elino o ife Insu%ance Di/ision 7an- +ctin Di/ision Chie Chieff in the the abse absenc nce e of the the Chie Chief8 f8'' of the the sa$e sa$e Cent%al Visa1as Reional O=ce of the GSIS. De$an-s 0e%e $a-e on all fou% of the$ to %esin f%o$ the GSIS GSIS E$pl E$plo1 o1ee ees s +sso +ssoci ciat atio ion' n' in /ie0 /ie0 of thei thei%% supe supe%/ %/is iso% o%1 1 posi positi tion ons. s. The1 The1 %efus efusee- to -o so. so. Conse?uentl1' t0o 738 c%i$inal cases fo% /iolation of the In-ust%ial Peace +ct 0e%e lo-e- aainst the$ in the Cit1 Cou%t Cou%t of Cebu, Cebu, one in/ol/in in/ol/in +%i4al +%i4ala a anMa%ibao " an- the othe%' *o/en an-
The c%ucial issue ob/iousl1 is 0hethe% o% not the petiti petitione one%s %s c%i$in c%i$inal al liabil liabilit1 it1 fo% a /iolat /iolation ion of the In-ust%ial Peace +ct $a1 be -ee$e- to ha/e been oblite%ate- in /i%tue of subse?uent subse?uent leislation an- the p%o/isions of the &(@! an- &(A@ Constitutions. The petitione%s contention that thei% liabilit1 habeen been e%as e%asee- is $a $a-e -e to %est %est upon upon the the foll follo0 o0in in p%e$ises, &. Section &' +%ticle II#< of the &(@! Constitution -oes in-ee- p%o/i-e that the :Ci/il Se%/ice e$b%aces e/e%1 b%anch' aenc1' sub-i/ision aninst inst%u %u$e $ent ntal alit it1 1 of the the o/e o/e%n %n$e $ent nt'' incl incluu-in in o/e%n o/e%n$en $ent#o t#o0ne 0ne- o% cont% cont%oll ollee- co%po% co%po%ati ations ons'' .. a-$i a-$ini nist ste% e%ee- b1 an in-e in-epe penn-en entt Ci/i Ci/ill Se%/ Se%/ic ice e Co$$ission. 3. +%ticle 3(3 of the >abo% Co-e %epeale- such pa%ts an- p%o/isions p%o/isions of the In-ust%ial In-ust%ial Peace +ct as 0e%e :not a-opte- as pa%t: of sai- Co-e :eithe% -i%ectl1 o% b1 %efe%ence.: The Co-e -i- not a-opt the p%o/ision of the In-ust%ial Peace +ct confe%%in on e$plo1ees of o/e%n$ent#o0ne- o% cont%olle- co%po%ations the %iht of self#o%ani4ation self#o%ani4ation an- collecti/e ba%ainin in fact it $a-e 5no0n that the :te%$s an- con-itions of e$plo1$ent of all o/e%n$ent e$plo1ees' inclu-in e$plo1 e$plo1ees ees of o/e%n o/e%n$en $ent#o t#o0ne 0ne- an- cont% cont%oll olleeco%po%ations': 0oul- thencefo%th no lone% be 69eb1 collecti/e ba%ainin but :be o/e%ne- b1 the Ci/il Se%/ice >a0' %ules an- %eulations.: &) !. The speci6c penalt1 fo% /iolation of the p%ohibition on supe%/iso%s bein $e$be%s in a labo% o%ani4ation of e$plo1ees un-e% thei% supe%/i %/ision has -isappea%e-. . The Co-e also $o-i6e- the concept of unfai% labo% p%acti p%actice' ce' -ec%ee -ec%eein in that that thence thencefo% fo%th' th' :it shall shall be consiconsi-e%e e%e- $e%el1 $e%el1 as an a-$ini a-$inist% st%ati ati/e /e oBe oBens nse e %athe% %athe% than than a c%i$in c%i$inal al oBe oBense nse 7an7an- that8 that8 7u8nfa 7u8nfai% i% labo% p%actice co$plaints shall 9 9 be p%ocesse- li5e an1 o%-ina%1 labo% -isputes.: && On the othe% han-' in 2usti6cation of the +ppellate T%ibunals T%ibunals a=%$ance a=%$ance of the petitione%s con/ictions of /iolations of the In-ust%ial Peace +ct' the People#
&8 a-/e%t to the fact that sai- >abo% Co-e also states that :all actions o% clai$s acc%uin p%io% to ... 7its8 eBecti/it1 ... shall be -ete%$ine- in acco%-ance 0ith the la0s in fo%ce at the ti$e of thei% acc%ual: an38 a%ue that the leislatu%e cannot ene%all1 inte%/ene an- /acate the 2u-$ent of the cou%ts' eithe% -i%ectl1 o% in-i%ectl1' b1 the %epeal of the statute un-e% 0hich sai- 2u-$ent has been %en-e%e-. The leal p%inciples o/e%nin the %ihts of self# o%ani4ation an- collecti/e ba%ainin of %an5#an-# 6le e$plo1ees in the o/e%n$ent# pa%ticula%l1 as %ea%-s supe%/iso%1' an- hih le/el o% $anae%ial e$plo1ees ha/e un-e%one alte%ations th%ouh the 1ea%s. Republic +ct No. A@; +s al%ea-1 inti$ate-' un-e% R+ A@; 7the In-ust%1 Peace +ct8' &3 pe%sons :e$plo1e- in p%op%ieta%1 functions of the Go/e%n$ent' inclu-in but not li$ite- to o/e%n$ental co%po%ations': ha- the %iht of self#o%ani4ation an- collecti/e ba%ainin' inclu-in the %iht to enae in conce%te- acti/ities to attain thei% ob2ecti/es' e.. st%i5es.
but not li$ite- to' o/e%n$ental co%po%ations.: &" The +ct also penali4e- an1 pe%son 0ho :/iolates' %efuses o% nelects to co$pl1 0ith an1 ... p%o/isions 7of the +ct8 o% %ules 7the%eun-e% p%o$ulate-8 ... b1 a 6ne not e9cee-in one thousan- pesos o% b1 i$p%ison$ent not e9cee-in si9 $onths o% both such 6ne an- i$p%ison$ent in the -isc%etion of the cou%t.: &@ The &(@! Constitution The &(@! Constitution lai- -o0n the b%oa- p%inciple that :7t8he State shall assu%e the %ihts of 0o%5e%s to self#o%ani4ation' collecti/e ba%ainin' secu%it1 of tenu%e' an- 2ust an- hu$ane con-itions of 0o%5': &A an- -i%ecte- that the :National +sse$bl1 shall p%o/i-e fo% the stan-a%-i4ation of co$pensation of o/e%n$ent o=cials an- e$plo1ees' inclu-in those in o/e%n$ent#o0ne- o% cont%olle- co%po%ations' ta5in into account the natu%e of the %esponsibilities pe%tainin to' an- the ?uali6cations %e?ui%e- fo%' the positions conce%ne-.: &( PD 3' The >abo% Co-e The >abo% Co-e of the Philippines' P%esi-ential Dec%ee No. 3' enacte- 0ithin a 1ea% f%o$ eBecti/it1 of the &(@! Constitution' 3) inco%po%atethe p%oposition that the :te%$s an- con-itions of e$plo1$ent of all o/e%n$ent e$plo1ees' inclu-in e$plo1ees of o/e%n$ent#o0ne- an- cont%olleco%po%ations ... 7a%e8 o/e%ne- b1 the Ci/il Se%/ice >a0' %ules an- %eulations.: 3& It inco%po%ate-' too' the constitutional $an-ate that the sala%ies of saie$plo1ees :shall be stan-a%-i4e- b1 the National +sse$bl1.: The >abo% Co-e' 33 ho0e/e% :e9e$pte-: o/e%n$ent e$plo1ees f%o$ the %iht to self# o%ani4ation fo% pu%poses of collecti/e ba%ainin. hile the Co-e containe- p%o/isions ac5no0le-in the %iht of :all pe%sons e$plo1e- in co$$e%cial' in-ust%ial an- a%icultu%al ente%p%ises' inclu-in %eliious' $e-ical o% e-ucational institutions ope%atin fo% p%o6t: to :self#o%ani4ation an- to fo%$' 2oin o% assist labo% o%ani4ations fo% pu%poses of collecti/e ba%ainin': the1 :e9e$pte- f%o$ the fo%eoin p%o/isions, a8 secu%it1 ua%-s b8 o/e%n$ent e$plo1ees' inclu-in e$plo1ees of o/e%n$ent o/e%n$ent#o0ne- an-H o% cont%olleco%po%ations c8
$anae%ial e$plo1ees an-
-8 e$plo1ees of %eliious' cha%itable' $e-ical an- e-ucational institutions not ope%atin fo% p%o6t' p%o/i-e- the latte% -o not ha/e e9istin collecti/e a%ee$ents o% %econi4e- unions at the ti$e of the eBecti/it1 of the co-e o% ha/e /olunta%il1 0ai/ethei% e9e$ption.: 3! The %eason fo% -en1in to o/e%n$ent e$plo1ees the %iht to :self#o%ani4ation an- to fo%$' 2oin o% assist labo% o%ani4ations fo% pu%poses of collecti/e ba%ainin: is p%esu$abl1 the sa$e as that un-e% the In-ust%ial Peace +ct' i.e.' that the te%$s ancon-itions of o/e%n$ent e$plo1$ent a%e 69e- b1 la0 an- not b1 collecti/e ba%ainin.
So$e inconsistenc1 appea%s to ha/e a%isen bet0een the >abo% Co-e an- the Ci/il Se%/ice +ct of &(;(. Un-e% the Ci/il Se%/ice +ct' pe%sons :e$plo1e- in p%op%ieta%1 functions of the o/e%n$ent inclu-in' but not li$ite- to' o/e%n$ental co%po%ations#not bein 0ithin :the polic1 of the Go/e%n$ent that the e$plo1ees the%ein shall not st%i5e fo% the pu%pose of secu%in chanes in thei% te%$s an- con-itions of e$plo1$ent:#coul- leiti$atel1 ba%ain 0ith thei% %especti/e e$plo1e%s th%ouh thei% labo% o%ani4ations' an- co%olla%il1 enae in st%i5es anothe% conce%te- acti/ities in an atte$pt to b%in about chanes in the con-itions of thei% 0o%5. The1 coul- not ho0e/e% -o so un-e% the >abo% Co-e anits I$ple$entin Rules an- Reulations these p%o/i-e- that :o/e%n$ent e$plo1ees' inclu-in e$plo1ees of o/e%n$ent#o0ne- an-Ho% cont%olleco%po%ations': 0ithout -istinction as to function' 0e%e :e9e$pte-: 7e9clu-e- is the bette% te%$8 f%o$ :the %iht to self#o%ani4ation an- to fo%$' 2oin o% assist labo% o%ani4ations fo% pu%poses of collecti/e ba%ainin': an- b1 i$plication' e9clu-e- as 0ell f%o$ the %iht to enae in conce%te- acti/ities' such as st%i5es' as coe%ci/e $easu%es aainst thei% e$plo1e%s. Me$be%s of supe%/iso%1 unions 0ho 0e%e not $anae%ial e$plo1ees' 0e%e -ecla%e- b1 the >abo% Co-e to be :eliible to 2oin o% assist the %an5 an- 6le labo% o%ani4ation' an- if none e9ists' to fo%$ o% assist in the fo%$in of such %an5 an- 6le o%ani4ation : 3 Manae%ial e$plo1ees' on the othe% han-' 0e%e p%onounce- as not eliible to 2oin' assist o% fo%$ an1 labo% o%ani4ation.: 3; + :$anae%ial e$plo1ee: 0as -e6ne- as one /este- 0ith po0e% o% p%e%oati/es to la1 -o0n an- e9ecute $anae$ent policies an-Ho% to hi%e' t%ansfe%' suspen-' la1#oB' %ecall' -ischa%e' assin o% -iscipline e$plo1ees' o% to eBecti/el1 %eco$$en- such $anae%ial actions.: 3" P%esi-ential Dec%ee No. A)@ Cla%i6cation of the $atte% see$s to ha/e been /e%1 sho%tl1 atte$pte- b1 the Ci/il Se%/ice Dec%ee of the Philippines' P%esi-ential Dec%ee No. A)@ 7eB.' Oct. "'&(@;8 0hich supe%se-e- the Ci/il Se%/ice >a0 of &(;( 7R+ 33")8 3@ an- %epeale- o% $o-i6e- :all la0s' %ules an- %eulations o% pa%ts the%eof inconsistent 0ith the p%o/isions: the%eof. The Dec%ee cateo%icall1 -esc%ibe- the scope an- co/e%ae of the :Ci/il Se%/ice: as e$b%acin e/e%1 b%anch' aenc1' sub-i/ision' an- inst%u$entalit1 of the o/e%n$ent' inclu-in e/e%1 o/e%n$ent o0ne- o% cont%olleco%po%ation 0hethe% pe%fo%$in o/e%n$ental o% p%op%iet1 function. 3A The eBect 0as see$inl1 to p%ohibit o/e%n$ent e$plo1ees 7inclu-in those :e$plo1e- in p%op%ieta%1 functions of the Go/e%n$ent:8 to :st%i5e fo% the pu%pose of secu%in chanes of thei% te%$s an- con-itions of e$plo1$ent': 3( so$ethin 0hich' as afo%estate-' the1 0e%e allo0e- to -o un-e% the Ci/il Se%/ice +ct of &(;(. !)
leislati/e po0e%s un-e% the F%ee-o$ Constitution' $o-i6ethe ene%al -is?uali6cation abo/e $entione- of o/e%n$ent e$plo1ees' inclu-in e$plo1ees of o/e%n$ent#o0ne- an-Ho% cont%olleco%po%ations: f%o$ :the %iht to self#o%ani4ation anto fo%$' 2oin o% assist labo% o%ani4ations fo% pu%poses of collecti/e ba%ainin. It %ante- to e$plo1ees :of o/e%n$ent co%po%ations establisheun-e% the Co%po%ation Co-e 9 9 the %iht to o%ani4e an- to ba%ain collecti/el1 0ith thei% %especti/e e$plo1e%s.: !& To all othe% e$plo1ees in the ci/il se%/ice' ... 7it %ante- $e%el18 the %iht to fo%$ associations fo% pu%poses not cont%a%1 to la0': !3 not fo% :pu%poses of collecti/e ba%ainin.: The &(A@ Constitution The p%o/isions of the p%esent Constitution on the $atte% appea% to be so$e0hat $o%e e9tensi/e. The1 -ecla%e that the :%iht to self o%ani4ation shall not be -enie- to o/e%n$ent e$plo1ees: !! that the State :shall ua%antee the %ihts of all 0o%5e%s to self#o%ani4ation' collecti/e ba%ainin anneotiations' an- peaceful conce%te- acti/ities' inclu-in the %iht to st%i5e in acco%-ance 0ith la0: an- that sai- 0o%5e%s :shall be entitle- to secu%it1 of tenu%e' hu$ane con-itions of 0o%5' an- a li/in 0ae' ... 7an-8 also pa%ticipate in polic1 an- -ecision# $a5in p%ocesses aBectin thei% %ihts an- bene6ts as $a1 be p%o/i-e- b1 la0. ! CSC Me$o%an-u$ Ci%cula% No. " Me$o%an-u$ Ci%cula% No. " of the Ci/il Se%/ice Co$$ission' issue- on +p%il 3&' &(A@ en2oinest%i5es b1 o/e%n$ent o=cials an- e$plo1ees' to 0it, !; ... P%io% to the enact$ent b1 Con%ess of applicable la0s conce%nin st%i5e b1 o/e%n$ent e$plo1ees' an- consi-e%in that the%e a%e e9istin la0s 0hich p%ohibit o/e%n$ent o=cials an- e$plo1ees f%o$ %eso%tin to st%i5e' the Co$$ission en2oins' un-e% pain of a-$inist%ati/e sanctions' all o/e%n$ent o=ce%s an- e$plo1ees f%o$ stain st%i5es' -e$onst%ations' $ass lea/es' 0al5#outs an- othe% fo%$s of $ass action 0hich 0ill %esult in te$po%a%1 stoppae o% -is%uption of public se%/ices. To allo0 othe%0ise is to un-e%$ine o% p%e2u-ice the o/e%n$ent s1ste$. E9ecuti/e O%-e% No. &A) The scope of the constitutional %iht to self# o%ani4ation of :o/e%n$ent e$plo1ees: abo/e $entione-' 0as -e6ne- an- -elineate- in E9ecuti/e O%-e% No. &A) 7eB. *une &' &(A@8. +cco%-in to this E9ecuti/e O%-e%' the %iht of self#o%ani4ation -oes in-ee- pe%tain to all :e$plo1ees of all b%anches' sub-i/isions' inst%u$entalities an- aencies of the Go/e%n$ent' inclu-in o/e%n$ent#o0neo% cont%olle- co%po%ations 0ith o%iinal cha%te%s: !" such e$plo1ees :shall not be -isc%i$inate- aainst in %espect of thei% e$plo1$ent b1 %eason of thei% $e$be%ship in e$plo1ees o%ani4ations o% pa%ticipation in the no%$al acti/ities of thei% o%ani4ation 9 9 7an- thei%8 e$plo1$ent shall not be sub2ect to the con-ition that the1 shall not 2oin o% shall %elin?uish thei% $e$be%ship in the e$plo1ees o%ani4ations. !@ o0e/e%' the concept of the o/e%n$ent e$plo1ees %iht of self#o%ani4ation -iBe%s sini6cantl1 f%o$ that
of e$plo1ees in the p%i/ate secto%. The latte%s %iht of self#o%ani4ation' i.e.' :to fo%$' 2oin o% assist labo% o%ani4ations fo% pu%poses of collecti/e ba%ainin': a-$itte-l1 inclu-es the %iht to -eal an- neotiate 0ith thei% %especti/e e$plo1e%s in o%-e% to 69 the te%$s an- con-itions of e$plo1$ent an- also' to enae in conce%te- acti/ities fo% the attain$ent of thei% ob2ecti/es' such as st%i5es' pic5etin' bo1cotts. a0 an- %ules: an- :an1 leislation that $a1 be enacte- b1 Con%ess': ) that :the %esolution of co$plaints' %ie/ances ancases in/ol/in o/e%n$ent e$plo1ees: is not o%-ina%il1 left to collecti/e ba%ainin o% othe% %elateconce%te- acti/ities' but to :Ci/il Se%/ice >a0 anlabo% la0s an- p%oce-u%es 0hene/e% applicable: anthat in case :an1 -ispute %e$ains un%esol/e- afte% e9haustin all a/ailable %e$e-ies un-e% e9istin la0s an- p%oce-u%es' the pa%ties $a1 2ointl1 %efe% the -ispute to the 7Public Secto% >abo%#Manae$ent8 Council fo% app%op%iate action.: & hat is $o%e' the Rules an- Reulations i$ple$entin E9ecuti/e O%-e% No. &A) e9plicitl1 p%o/i-e that since the :te%$s ancon-itions of e$plo1$ent in the o/e%n$ent' inclu-in an1 political sub-i/ision o% inst%u$entalit1 the%eof an- o/e%n$ent#o0ne- an- cont%olleco%po%ations 0ith o%iinal cha%te%s a%e o/e%ne- b1 la0' the e$plo1ees the%ein shall not st%i5e fo% the pu%pose of secu%in chanes the%eof. 3 On the $atte% of li$itations on $e$be%ship in labo% unions of o/e%n$ent e$plo1ees' E9ecuti/e O%-e% No. &A) -ecla%es that :hih le/el e$plo1ees 0hose functions a%e no%$all1 consi-e%e- as polic1 $a5in o% $anae%ial' o% 0hose -uties a%e of a hihl1 con6-ential natu%e shall not be eliible to 2oin the o%ani4ation of %an5#an-#6le o/e%n$ent e$plo1ees. ! + :hih le/el e$plo1ee: is one :0hose functions a%e no%$all1 consi-e%e- polic1 -ete%$inin' $anae%ial o% one 0hose -uties a%e hihl1 con6-ential in natu%e. + $anae%ial function %efe%s to the e9e%cise of po0e%s such as, &. To eBecti/el1 %eco$$en- such $anae%ial actions 3. To fo%$ulate o% e9ecute $anae$ent policies an- -ecisions o% !. To hi%e' t%ansfe%' suspen-' la1 oB' %ecall' -is$iss' assin o% -iscipline e$plo1ees. Republic +ct No. "@&; The %ule %ea%-in $e$be%ship in labo% o%ani4ations of $anae%ial an- supe%/iso%1 e$plo1ees 2ust
a-/e%te- to' 0as cla%i6e- an- %e6ne- b1 Republic +ct No. "@&;' eBecti/e on Ma%ch 3&' &(A(' fu%the% a$en-in the >abo% Co-e. Un-e% R+ "@&; labo% unions a%e %ea%-e- as o%ani4e- eithe% 7a8 :fo% pu%poses of neotiation': o% 7b8 :fo% fu%the%ance an- p%otection:of the $e$be%s %ihts. Me$be%ship in unions o%ani4e- :fo% pu%poses of neotiation: is open onl1 to %an5#an-#6le e$plo1ees. :Supe%/iso%1 e$plo1ees: a%e ineliible :fo% $e$be%ship in a labo% o%ani4ation of the %an5# an-#6le e$plo1ees but $a1 2oin' assist o% fo%$ sepa%ate labo% o%ani4ations of thei% o0n': i.e.' one o%ani4e- :fo% fu%the%ance an- p%otection: of thei% %ihts an- inte%ests. o0e/e%' acco%-in to the Rules i$ple$entin R+ "@&;' :supe%/iso%1 e$plo1ees 0ho a%e inclu-e- in an e9istin %an5#an-# 6le ba%ainin unit' upon the eBecti/it1 of Republic +ct No. "@&; shall %e$ain in that unit ...: Supe%/iso%1 e$plo1ees a%e :those 0ho' in the inte%est of the e$plo1e%' eBecti/el1 %eco$$en- such $anae%ial actions ; if the e9e%cise of such autho%it1 is not $e%el1 %outina%1 o% cle%ical in natu%e but %e?ui%es the use of in-epen-ent 2u-$ent. " Me$be%ship in e$plo1ees o%ani4ations fo%$e- fo% pu%poses of neotiation a%e open to %an5#an-#6le e$plo1ees onl1' as abo/e $entione-' an- not to hih le/el e$plo1ees. @ In-ee-' :$anae%ial e$plo1ees: o% :hih le/el e$plo1ees: a%e' to %epeat' :not eliible to 2oin' assist o% fo%$ an1 labo% o%ani4ation: at all. A + $anae%ial e$plo1ee is -e6ne- as :one 0ho is /este- 0ith po0e%s o% p%e%oati/es to la1 -o0n ane9ecute' $anae$ent policies an-Ho% to hi%e' t%ansfe%' suspen-' la1#oB' %ecall' -ischa%e' assin o% -iscipline e$plo1ees.: ( This is ho0 the la0 no0 stan-s' pa%ticula%l1 0ith %espect to supe%/iso%1 e$plo1ees /is a /is labo% o%ani4ations of e$plo1ees un-e% the$. No0' the GSIS pe%fo%$s p%op%ieta%1 functions. It is a non#stoc5 co%po%ation' $anae- b1 a a0 in so fa% as the1 a%e not othe%0ise inconsistent 0ith othe% applicable la0. ;& It is enae- essentiall1 in insu%ance' a business that :is not inhe%entl1 o% e9clusi/el1 a o/e%n$ental function' ... 7but8 is on the cont%a%1' in essence an- p%actice' of a p%i/ate natu%e an- inte%est.: ;3 &. The petitione%s conten- that the %iht of self# o%ani4ation an- collecti/eba%ainin ha- been 0ith-%a0n b1 the >abo% Co-e f%o$ o/e%n$ent e$plo1ees inclu-in those in o/e%n$ent#o0ne- ancont%olle- co%po%ations# chie1 fo% the %eason that the te%$s ancon-itions of o/e%n$ent e$plo1$ent' all e$b%ace- in ci/il se%/ice' $a1 not be $o-i6e- b1 collecti/e ba%ainin because set b1 la0. It is the%efo%e i$$ate%ial' the1 sa1' 0hethe% supe%/iso%s a%e $e$be%s of %an5#an-#6le unions o% not afte% all' the possibilit1 of the e$plo1e%s cont%ol of the $e$be%s of the union th%u supe%/iso%s thus %en-e%in collecti/e ba%ainin illuso%1' 0hich is the $ain %eason fo% the p%ohibition' is no lone% of an1 conse?uence. This 0as t%ue' fo% a ti$e. +s al%ea-1 -iscusse-' both un-e% the >abo% Co-e an- PD A)@' o/e%n$ent e$plo1ees' inclu-in those in o/e%n$ent#o0ne- o% cont%olle- co%po%ations' 0e%e in-ee- p%eclu-e- f%o$
ba%ainin as %ea%-s te%$s an- con-itions of e$plo1$ent because these 0e%e set b1 la0 anhence coul- not possibl1 be alte%e- b1 neotiation. abo% Co-e 7PD 38 allo0esupe%/iso%s 7if not $anae%ial8 to 2oin %an5#an-#6le unions. +n- un-e% the I$ple$entin Rules of R+ "@&;' supe%/iso%s 0ho 0e%e $e$be%s of e9istin labo% o%ani4ations on the eBecti/it1 of sai- R+ "@&; 0e%e e9plicitl1 autho%i4e- to :%e$ain the%ein.: !. The co%%ectness of the petitione%s theo%1 that unfai% labo% p%actices cease- to be c%i$es an- 0e%e -ee$e- $e%el1 a-$inist%ati/e oBenses in /i%tue of the >abo% Co-e' cannot be ainsai-. +%ticle 3;) of the >abo% Co-e -i- p%o/i-e as follo0s, +RT. 3;). Concept of unfai% labo% p%actice.#The concept of unfai% labo% p%actice is he%eb1 $o-i6e-. encefo%th' it shall be consi-e%e- $e%el1 as an a-$inist%ati/e oBense %athe% than a c%i$inal oBense. Unfai% labo% p%actice co$plaints shall' the%efo%e' be p%ocesse- li5e an1 o%-ina%1 labo% -isputes. abo% Co-e eBecte- b1
999
999
Reco/e%1 of ci/il liabilit1 in the a-$inist%ati/e p%ocee-ins shall ba% %eco/e%1 un-e% the Ci/il Co-e. No c%i$inal p%osecution un-e% this title $a1 be institute- 0ithout a 6nal 2u-$ent' 6n-in that an unfai% labo% p%actice 0as co$$itte- ha/in been 6%st obtaine- in the p%ece-in pa%a%aph. ... The -ecisi/e consi-e%ation is that at p%esent' supe%/iso%s 0ho 0e%e al%ea-1 $e$be%s of a %an5# an-#6le labo% o%ani4ation at the ti$e of the eBecti/it1 of R.+. No. "@&;' a%e autho%i4e- to :%e$ain
the%ein.: It see$s plain' in othe% 0o%-s' that the $aintenance b1 supe%/iso%s of $e$be%ship in a %an5#an-#6le labo% o%ani4ation e/en afte% the enact$ent of a statute i$posin a p%ohibition on such $e$be%ship' is not onl1 not a c%i$e' but is e9plicitl1 allo0e-' un-e% p%esent la0. No0' in a case -eci-e- as ea%l1 as &(!;' People /. Ta$a1o' ;! 0he%e the appellants ha- appeale- f%o$ a 2u-$ent con/ictin the$ of a /iolation of a $unicipal #o%-inance' an- 0hile thei% appeal 0as pen-in' the o%-inance 0as %epeale- such that the act co$plaine- of cease- to be a c%i$inal act but beca$e leal' this Cou%t -is$isse- the c%i$inal p%ocee-ins' p%onouncin the eBects of the %epeal to be as follo0s, In the lea-in case of the Unite- States /s. Cuna 7&3 Phil. 3&8' an- in /s. Unite- States 73&A U.S. 3@38' the -oct%ine 0as clea%l1 establishe- that in the Philippines %epeal of a c%i$inal act b1 its %eenact$ent' e/en 0ithout a sa/in clause 0oul- not -est%o1 c%i$inal liabilit1. an- Tenanc1 >a0 of &(;8 0hich penali4e- p%e#th%eshin b1 eithe% a%icultu%al tenant o% his lan-lo%-. The1 souht an- secu%e- a -is$issal on the %oun-' a$on othe%s' that the%e 0as no la0 punishin the act cha%e-#a %efe%ence to the fact that Republic +ct No. &&(( ha- al%ea-1 been supe%se-eb1 the +%icultu%al >an- Refo%$ Co-e of &("! 0hich institute- the leasehol- s1ste$ an- abolishe- sha%e tenanc1 sub2ect to ce%tain con-itions. On appeal b1 the Go/e%n$ent' this Cou%t uphel- the -is$issal' sa1in, The leislati/e intent not to punish an1$o%e the tenants act of p%e#%eapin an- p%e#th%eshin 0ithout notice to the lan-lo%- is infe%able f%o$ the fact that' as al%ea-1 note-' the Co-e of +%a%ian Refo%$s -inot %eenact section !( of the +%icultu%al Tenanc1 >a0 an- that it abolishe- sha%e tenanc1 0hich is the basis fo% penali4in clan-estine p%e#%eapin an- p%e# th%eshin.
999
999
999
+s hel- in the +-illo case' ;; the act of p%e#%eapin an- p%e#th%eshin 0ithout notice to the lan-lo%-' 0hich is an oBense un-e% the +%icultu%al Tenanc1 >a0' ha- cease- to be an oBense un-e% the subse?uent la0' the Co-e of +%a%ian Refo%$s. To p%osecute it as an oBense 0hen the Co-e of +%a%ian Refo%$s is al%ea-1 in fo%ce 0oul- be %epunant o% abho%%ent to the polic1 an- spi%it of that Co-e an0oul- sub/e%t the $anifest leislati/e intent not to punish an1$o%e p%e#%eapin an- p%e#th%eshin 0ithout notice to the lan-hol-e%. 999
999
I-.' Sec. 3;' %ea-in, :+n1 pe%son 0ho /iolates the p%o/isions of section th%ee of this +ct shall be punishe- b1 a 6ne of not less than one hun-%e- pesos no% $o%e than one thousan- pesos' o% b1 i$p%ison$ent of not less than one $onth no% $o%e than one 1ea%' o% b1 both such 6ne ani$p%ison$ent' in the -isc%etion of the Cou%t. ... ; SEE Manila Co%-ae Co. /. CIR' @A SCR+ )A. "
C%i$. Case No. ;3@;#R.
@
C%i$. Case No. &!)#R.
999
The %epeal of a penal la0 -ep%i/es the cou%ts of 2u%is-iction to punish pe%sons cha%e- 0ith a /iolation of the ol- penal la0 p%io% to its %epeal 7People /s. Ta$a1o' "& Phil. 33; People /s. Sin-ion an- Pasto%' @@ Phil. &))) People /s. a%i$as /s. Di%ecto% of P%isons' ;@ Phil. 3@' 3;3' 3;8. The fo%eoin p%ece-ents -ictate absolution of the appellants of the oBenses i$pute- to the$. EREFORE' the 2u-$ents of con/iction in C+#G.R. No. &@3#CR an- C+#G.R. No. &A;"#CR' sub2ect of the appeal' as 0ell as those in C%i$. Case No. ;3@;#R an- C%i$. Case No. &!)#R %en-e%e- b1 the T%ial Cou%t' a%e REVERSED an- the accuse-#appellants +CKUITTED of the cha%es aainst the$' 0ith costs -e o=cio. SO ORDERED. C%u4' Ganca1co' G%iLo#+?uino an- Me-ial-ea' **.' concu%.
Footnotes &
sepa%ate o%ani4ations of thei% o0n.: 7E$phasis supplie-8
Republic +ct No. A@;' eB. *an. &@' &(;!.
3 R+ A@;' Sec. &&, The te%$s an- con-itions of e$plo1$ent in the Go/e%n$ent inclu-in an1 political sub-i/ision o% inst%u$entalit1 the%eof' a%e o/e%ne- b1 la0 an- it is to be the polic1 of this +ct that e$plo1ees the%ein shall not st%i5e fo% the pu%pose of chanes o% $o-i6cation in thei% te%$s ancon-itions of e$plo1$ent. Such e$plo1ees $a1 belon to an1 labo% o%ani4ation 0hich -oes not i$pose the obliation to st%i5e o% 2oin in the st%i5e P%o/i-e-' ho0e/e%' That this section shall appl1 onl1 to e$plo1ees e$plo1e- in o/e%n$ental functions an- not to those e$plo1e- in p%op%ieta%1 functions of the Go/e%n$ent inclu-in but not li$ite- to o/e%n$ental co%po%ations.: 7E$phasis supplie-8 ! R+ A@;' Sec. !' %ea-in, :E$plo1ees shall ha/e the %iht to self#o%ani4ation an- to fo%$' 2oin o% assist labo% o%ani4ations of thei% o0n choosin fo% the pu%pose of collecti/e ba%ainin th%ouh %ep%esentati/es of thei% o0n choosin an- to enae in conce%te- acti/ities fo% the pu%pose of collecti/e ba%ainin an- othe% $utual ai- an- p%otection. In-i/i-uals e$plo1e- as supe%/iso%s shall not be eliible fo% $e$be%ship in a lab0no% o%ani4ation of e$plo1ees un-e% thei% supe%/ision but $a1 fo%$
A *u-$ent of con/iction i n C%i$. Case No. ;3@;#R' aainst +%i4ala an- Ma%ibao' 0as %en-e%eb1 Cit1 *u-e Ro$ulo R. Seninin that in C%i$. Case No. &!)#R' aainst *o/en an- abo% Co-e' sup%a. && +RT. 3(' I-. &3 Footnote 3' p. &' an- footnote ' p. 3' sup%a. &! Sec. 3 758' R+ A@;. & Sec. !. &; Issue- on Sept. 33' &(@3. &" Sec. 3A 7c8. &@ Sec. . The penalt1 un-e% the In-ust%ial Peace +ct 0as a 6ne of not less than one hun-%epesos no% $o%e than one thousan- pesos' o% i$p%ison$ent of not less than one $onth no% $o%e than one 1ea%' o% b1 both such 6ne ani$p%ison$ent' in the -isc%etion of the Cou%t 7SEE footnote ' sup%a8. &A Sec. (' +RT. II. &( Sec. "' +RT. II' <. 3) The >abo% Co-e beca$e eBecti/e on No/. &' &(@. 3& +RT. !&. 33 +RT. 3! SEE I$ple$entin Rules anReulations issue- on *an. &('&(@;' eB. Feb. !'&(@;. 3! Sec. &' Rule &&' abo% Co-e. 3; +RT. 3"' >abo% Co-e' e$phasis supplie-. 3" +RT. 3") 758' cf. footnote &! %e supe%/iso%1 e$plo1ees. 3@ P. ;' sup%a. 3A Sec. . +RT. IV 3( SEE footnote &3' sup%a. !) SEE footnote &' sup%a.
!& +RT. 3 also' SEC. &' Rule &&' abo% Co-e' as a$en-eb1 Sec. ! of the I$ple$entin Rules of EO &&& e$phasis supplie-. !3 +RT. 3' italics supplie-. !! SEC. 3 7;8' +RT. I#< 7%e Constitutional Co$$issions8 ! Sec. !' +RT. III 7Social *ustice an- u$an Rihts8' e$phasis supplie-. !; See footnote &; an- %elate- te9t' sup%a. !" Sec. &' EO &A). E9cepte- f%o$ the application of the e9ecuti/e o%-e%' ho0e/e%' a%e :$e$be%s of the +%$e- Fo%ces of the Philippines' inclu-in police o=ce%s' police$en' 6%e$en an- 2ail ua%-s: 7Sec. 8. !@ SEC. ; ' Rule I I. + fu%the% s afeua%- i s that :Go/e%n$ent autho%ities shall not inte%fe%e in the establish$ent' functionin o% a-$inist%ation of o/e%n$ent e$plo1ees o%ani4ations th%ouh acts -esine- to place such o%ani4ations un-e% the cont%ol of o/e%n$ent autho%it1.: 7See. "8
3 Sec. ' Rule III' Rules I$ple$entin EO &A) italics supplie-. !
Sec. !' I-.
&A).
Sec. & 7&8' Rule & ' Rules I $ple$entin E O
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Inf%a' footnotes " an- (.
" +RT. 3&3 7$8' >abo% Co-e as a$en-e- b1 R+ "@&;. + :supe%/iso%: is -e6ne- in the ol- la0 7R+ A@;8 as :an1 pe%son ha/in autho%it1 in the inte%est of an e$plo1e% to hi%e' t%ansfe%' suspen-' la1#oB' %ecall' -ischa%e' assin' %eco$$en-' o% -iscipline othe% e$plo1ees' o% %esponsibl1 to -i%ect the$' anto a-2ust thei% %ie/ance o% eBecti/el1 to %eco$$ensuch acts if' in connection 0ith the fo%eoin' the e9e%cise of such autho%it1 is not $e%el1 %outina%1 o% cle%ical in natu%e but %e?ui%es the use of in-epen-ent 2u-$ent. @ Sec. 3' Rule II.
!A Sec. 3' I-. see footnote &3 an- %elate- te9t. A !( Sec. &!' I-. Decla%e- to be not neotiable a%e $atte%s :that %e?ui%e app%op%iation of fun-s: e..' inc%ease in sala%1 e$olu$ents an- othe% allo0ances' ca% plan' special hospitali4ation' $e-ical an- -ental se%/ices' inc%ease in %eti%e$ent bene6ts 7Sec. !' Rule VIII8' an- those :that in/ol/e the e9e%cise of $anae$ent p%e%oati/es: e..' appoint$ent' p%o$otion' assin$entH-etail' penalties as a %esult of -isciplina%1 actions' etc. 7Sec. ' I-.8 Consi-e%e- neotiable a%e such $atte%s as sche-ule of /acation an- othe% lea/es' 0o%5 assin$ent of p%enant 0o$en %ec%eational' social' athletic' ancultu%al acti/ities an- facilities' etc. 7Sec. 3' I-.8. ) Sec. &' I-. & Sec. &"' I-. The Council shall i$ple$ent ana-$iniste% the p%o/isions of the E9ecuti/e O%-e% anfo% this pu%pose $a1 p%o$ulate the necessa%1 %ules an- %eulations. It is co$pose- of the Chai%$an of the Ci/il Se%/ice Co$$ission' as Chai%$an the Sec%eta%1 of the Depa%t$ent of >abo% E$plo1$ent' as Vice# Chai%$an an- as $e$be%s' the Sec%eta%1 of Finance' the Sec%eta%1 of *ustice' an- the Sec%eta%1 of
+RT. 3;.
( +RT. 3 &3 7 $8' > abo% C o-e' a s a$en-e- b 1 See. ' R+ "@&; cf' footnote &' sup%a' an- +RT. 3") 758 of the o%iinal >abo% Co-e 7PD 38. ;)
C.+. No. &A"' as a$en-e- b1 R.+. No. "").
;& Sec. ' E9ecuti/e O%-e% No. !!(' the Unifo%$ Cha%te% fo% Go/e%n$ent Co%po%ations. ;3 GSIS /. Castillo' et al.' (A Phil. A@"' A@A#A@( abo% an- E$plo1$ent' &3 SCR+ & &(A! GSIS /. GSIS Supe%/iso%s Union' et al.' A; SCR+ () &(@A. ;!
"& Phil. 33;' 33"#33@.
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"( SCR+ &)' &!#& 7Feb. 3@' &(@"8.
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>#3!@A;' No/e$be% 3@' &(@; "A SCR+ ().
