GOV. LUIS RAYMUND F. VILLAFUERTE, JR. and the Provine v.. &on. Je$$e M. Ro'redo, in hi$ a(ait) o! "a#arine$ S%r v a$ Seretar) o! DILG December 10, 2014 | Reyes, J. | Honest Public Service and Full Public Disclosure Diester! "inat, #nna $ic%aella &. SUMMARY* 'illa(uerte )led a *etition assailin t+e t+ree memorandum circulars issued by Robredo. +e circulars *ertain to (ull disclosure o( local budet and )nances and ot+er uidelines reardin budet. 'illa(uerte arues t+at t+e circulars violate t+e *rinci*les o( local and )scal autonomy o( t+e "-. +e /ourt ruled t+at t+e circulars merely reiterated +at as already *rovided in t+e la and t+at t+e order on *ublic disclosure is consistent it+ t+e *olicy o( *romotin o od overnance t+rou+ trans*arency, accountability and *artici*ation. DO"TRINE* +e /onstitution is no re*lete it+ numerous *rovisions directin t+e ado*tion o( measures to u*+old trans*arency and accountability in overnment, it+ a vie o( *rotectin t+e nation (rom re*eatin its atrocious *ast. t commands t+e strict ad+erence to (ull disclosure o( in(ormation on all matters relatin to oicial transactions and t+ose involvin *ublic interest. FA"TS* 3n February 21, 2011, 'illa(uerte, t+en -overnor o( /amarines Sur, Sur, oined by t+e Provincial -overnment o( /amarines Sur, )led t+e instant *etition (or certiorari, see%in to nulli(y t+e t+ree issuances o( Robredo (or bein unconstitutional and +avin been issued it+ rave abuse o( discretion! o M" No. +-/0 entit1ed 2F%11 Di$1o$%re o! Loa1 3%d4et and Finane$, and 3id$ and P%'1i O5erin4$,6 +ic+ aims to *romote ood overnance t+rou+ en+anced trans*arency and accountability o( "-s. "eal and #dministrative #ut+ority! Section 562 o( "-/ o( 1771 re8uires t+e *ostin it+in 50 days (rom end o( eac+ )scal year in at least 5 *ublicly accessible and cons*icuous *laces in t+e "- a summary o( all revenues collected and (unds includin t+e a**ro*riations and disbursements o( suc+ (unds durin t+e *recedin )scal year. R# &o 794 :-overnment Procurement Re(orm #ct; calles (or t+e *ostin o( t+e nvitation to
*remises, in nes*a*ers o( eneral circulation, t+e P+ili**ine -ovt >lectronic Procurement System and t+e ebsite o( *rocuri n entity. entity. Res*onsibility o( "ocal /+ie( >?ecutive! #ll Provincial -overnors, /ity $ayors, and $unici*al $yors, are directed to (ait+(ully com*ly it+ t+e abovecited *rovisions o( las, and e?istin national *olicy, by *ostin in cons*icuous *laces it+in *ublic buildins in t+e locality, or in *rint media o( community or eneral circulation, and in t+eir ebsites1 M" No +--0/ reiteratin t+at 20@ com*onent o( t+e R# s+all be utiliAed (or desirable social, economic, and environmental outcomes essential to t+e attainment o( t+e constitutional obective o( li(e (or all.2 M" No +--/ directin (or t+e strict ad+erence to Section 70 o( R# &o 1014B o( t+e -eneral #**ro*riations #ct o( 2011. "eal and #dministrative #ut+ority! Section 70 sti*ulates t+at Ct+e amount a**ro*riated (or t+e "-=s
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1 / 2010 #nnual ?*enditures, / 2010 rust Fund :PD#F; tiliAation, / 2010 S*ecial >ducation Fund tiliAation, / 2010 20@ /om*onent o( t+e R# tiliAation, / 2010 -ender and Develo*ment Fund tiliAation, / 2010 Statement o( Debt Service, / 2010 #nnual Procurement Plan or Procurement "ist, tems to
#dministrative e?*enses suc+ as cas+ i(ts, bonuses, #dministrative bonuses, (ood alloance, alloance, medical assistance, uni(orms, su**lies, meetins, communication, ater and li+t, *etroleum *roducts, and t+e li%eGSalaries, li%eGSalaries, aes or overtime *ayG
2. rave ravellin llin e?*enses, e?*enses, +et+e +et+err domestic domestic or (orein (oreinGG 5.
Reistration or *artici*ation *artici*ation (ees (ees in trainin, seminars, con(erences or conventionsG
4. /onst /onstructi ruction, on, re*air re*air or re)nis+in re)nis+in o( administr administrative ative oices oicesGG 6.
Purc+ase o( administrative administrative oice (urniture, )?tures, e8ui*ment or a**liancesG and Purc+ase, maintenance or re*air o( motor ve+icles or motorcycles, e?ce*t ambulances.
s+are in t+e R# s+all be used in accordance it+ Sections 1B:; and 29B o( R# &o B10. +e annual budets o( "-s s+all be *re*ared in accordance it+ t+e (orms, *rocedures, and sc+edules *rescribed by t+e De*artment o(
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"ocal autonomy means a more res*onsive and accountable local overnment structure instituted t+rou+ a system o ( decentraliAation. #utonomy is eit+er decentraliAation o( administration or decentraliAation o( *oer. +ere is decentraliAation o( administration +en t+e central overnment deleates administrative *oers to *olitical subdivisions in order to broaden t+e base o( overnment *oer and in t+e *rocess to ma%e local overnments Cmore res*onsive and accountable, and Censure t+eir (ullest develo*ment as sel(Ireliant communities and ma%e t+em more eective *artners in t+e *ursuit o( national develo*ment and social *roress. :"imbona v $anelin; o sa(euard t+e state *olicy on local autonomy, t+e /onstitution con)nes t+e *oer o( t+e President over "-s to mere su*ervision. C+e President e?ercises Meneral su*ervision= over t+em, but o nly to Mensure t+at local aairs are administered accordin to la.= He +as no control over t+eir acts in t+e sense t+at +e can substitute t+eir udments it+ +is on. :Section 4, #rticle K o( /onstitution; t is *etitioners= contention t+at Robredo ent beyond t+e con)ned o( +is su*ervisory *oers, as alter eo o( t+e President, +en +e issued $/ &o 2010I159. +ey arue t+at t+e mandatory nature o( t+e circular, it+ t+e t+reat o( im*osition o( sanctions (or nonIcom*liance, evinces a clear desire to e?ercise control over "-s. Hoever, t+e /ourt *erceives ot+erise. # readin o( $/ &o. 2010I159 s+os t+at it is a mere reiteration o( an e?istin *rovi sion in t+e "-/. t as *lainly intended to remind "-s to (ait+(ully observe t+e directive stated in Section 29B o( t+e "-/ to utiliAe t+e 20@ *ortion o( t+e R# (or develo*ment *roects. +e assailed circular as issued in res*onse to t+e re*ort o( t+e /3# t+at a substantial *ortion o( t+e 20@ develo*ment (und o( some "-s as not actually utiliAed (or develo*ment *roects but as diverted to e?*enses more *ro*erly cateoriAed as $33>, in violation o( Section 29B o( t+e "-/. +e issuance o( $/ &o. 2010I159 as brou+t about by t+e re*ort o( t+e /3# t+at t+e develo*ment ( und as not bein utiliAed accordinly. o curb t+e al leed misuse o( t+e
RULING* Petition denied.
7hether or not the a$$ai1ed #e#orand%# ir%1ar$ vio1ate the (rini(1e$ o! 1oa1 and 8$a1 a%tono#) en$hired in the "on$tit%tion and the LG"9 : NO Petitioners! assailed issuances inter(ere it+ t+e local and )scal autonomy o( "-s embodied i n t+e /onstitution and t+e "-/. $/ 2010I159 transressed t+ese constitutionallyI*rotected o liberties +en it restricted t+e meanin o( Cdevelo*ment and enumerated activities +ic+ t+e local overnment must )nance (rom t+e 20@ develo*ment (und com* onent o( t+e R# and *rovided sanctions (or local aut+orities +o s+all use t+e said com*onent o( t+e (und (or t+e e?cluded *ur*oses stated t+erein. Robredo cannot substitute +is on discretion it+ t+at o( o t+e local leislative council in enactin its annual budet and s*eci(yin t+e develo*ment *roects t +at t+e 20@ com*onent o( its R# s+ould (und. /ourt! Petitioners= aruments are untenable. o +e /onstitution +as e?*ressly ado*ted t+e *olicy o( ensurin t+e autonomy o( "-s :#rticle K o( /onstitution; o t is also *ursuant to t+e mandate o( t+e /onstitution t+at en+ancin local autonomy t+at t+e "-/ as enacted. 5 •
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3 Sec. 2. Declaration o( Policy. L :a; t is +ereby declared t+e *olicy o( t+e State t+at t+e territorial and *olitical subdivisions o( t+e State s+all enoy enuine and meanin(ul local autonomy to enable t+em to attain t+eir (ullest develo*ment as sel(Ireliant communities and ma%e t+em more eective *artners in t+e attainment o( national oals. oard t+is end, t+e State s+all *rovide (or a more res*onsive and accountable local overnment structure instituted t+rou+ a system o( decentraliAation +ereby local overnment units s+all be iven more *oers, aut+ority,
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res*onsibilities, and resources. +e *rocess o( decentraliAation s+all *roceed (rom t+e national overnment to t+e local overnment units.
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develo*ment (und, t+e res*ondent deemed it *ro*er to remind "-s o( t+e nature and *ur*ose o( t+e *rovision (or t+e R# t+rou+ $/ &o. 2010I159. +e enumeration in t+e circular as not meant to restrict o t+e discretion o( t+e "-s in t+e utiliAation o( t+eir (unds. t as incor*orated in t+e assailed circular in order to uide t+em in t+e *ro*er dis*osition o( t+e R# and avert (urt+er misuse o( t+e (und by citin current *ractices +ic+ seemed to be incom*atible it+ t+e *ur*ose o( t+e (und. "-s remain at liberty to ma* out t+eir develo*ment *lans based on t+eir on discretion and utiliAe t+eir R#s accordinly, it+ t+e only restriction t+at 20@ t+ereo( be e?*ended (or develo*ment *roects. +e local autonomy ranted "- does not com*letely severe t+em (rom t+e national overnment or turn t+em into im*enetrable states. +us, notit+standin t+e local )scal autonomy bein enoyed by "-s, t+ey are still under t+e su*ervision o( t+e President and maybe +eld accountable (or mal(easance or violations o( e?istin las. #nserin *etitioners= claim t+at t+e re8uirement to *ost ot+er documents in t+e issuances ent beyond t+e *rovisio ns in "-/ and R# &o 7194! t is ell to remember t+at )scal autonomy does not leave "-s it+ unbridled discretion in t+e disbursement o( *ublic (unds. +ey remain accountable to t+eir constituency. +e assailed issuances o( t+e res*ondent, $/ &os. 2010I95 and 2011I09, are but im*lementation o( t+is avoed *olicy o( t+e State to ma%e *ublic oicials accountable to t+e *eo*le. +ey are amalamations o( e?istin las, rules and reulation desined to ive teet+ to t+e constitutional mandate o( trans*arency and accountability. Public oice is a *ublic trust. t must be disc+ared by its +older not (or +is on *ersonal ain but (or t+e bene)t o( t+e *ublic (or +om +e +olds it in trust.
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call (or trans*arency and bot+ las establis+ a system o( trans*arency in *rocurement *rocess in overnment aencies. +e *ublication o( budets, e?*enditures, contracts and loans and *rocurement *lans o( "-s re8uired in t+e assailed issuances could not +ave in(rined o n t+e local )scal autonomy o( "-s. +e issuances do not inter(ere it+ t+e discretio n o( t+e o "-s in t+e s*eci)cation o( t+eir *rio rity *roects and t+e allocation o( t+eir budets. +e *ostin re8uirements are mere trans*arency measures. Section 562 o( t+e "-/ t+at is b ein invo%ed by t+e o *etitioners does not e?clude t+e re8uirement (or t+e *ostin o( t+e additional documents stated in $/ &os. 2010I95 and 2011I09. +e additional re8uirement (or t+e *ostin o( budets, e?*enditures, contracts and loans, and *rocurement *lans are ellIit+in t+e contem*lation o( Section 562 o( t+e "-/ considerin t+ey are documents necessary (or an accurate *resentation o( a summary o( a**ro*riations and disbursements t+at an "- is re8uired to *ublis+. +e su*ervisory *oers o( t+e President are broad enou+ o to embrace t+e *oer to re8uire t+e *ublication o( certain documents as a mec+anism o( trans*arency. +e President, by constitutional )at, is t+e +ead o( t+e economic and *lannin aency o( t+e overnment, *rimarily res*onsible (or (ormulatin and im*lementin continuin, coordinated and interated social and economic *olicies, *lans and *rorams (or t+e entire country. :Pimentel v #uirre; The "on$tit%tion, ;hih ;a$ dra!ted a!ter 1on4 )ear$ o! ditator$hi( and a'%$e o! (o;er, i$ no; re(1ete ;ith n%#ero%$ (rovi$ion$ diretin4 the ado(tion o! #ea$%re$ to %(ho1d tran$(aren) and ao%nta'i1it) in 4overn#ent, ;ith a vie; o! (rotetin4 the nation !ro# re(eatin4 it$ atroio%$ (a$t. It o##and$ the $trit adherene to !%11 di$1o$%re o! in!or#ation on a11 #atter$ re1atin4 to o5iia1 tran$ation$ and tho$e invo1vin4 (%'1i intere$t. +e assailed issuances ere issued *ursuant to t+e *olicy o( *romotin ood overnance t+rou+ trans*arency, accountability and *artici*ation. +e action o( t+e res*ondent is certainly it+in t+e constitutional bounds o( +is *oer as alter eo o( t+e President.
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+e *oer to overn is a deleated aut+ority (rom t+e *eo*le +o +ailed t+e *ublic oicial to oice t+rou+ t+e democratic *rocess o( election. He must not (ron u*on accountability c+ec%s +ic+ aim to s+o +o ell +e is *er(ormin +is
deleated *oer. For, it is t+rou+ t+ese mec+anisms o( trans*arency and accountability t+at +e is able to *rove to +is constituency t+at +e is ort+y o( t+e continued *rivilee. O5
