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Ocampo Et. Al. Vs The Secretary of Justice Et. Al.
Ocampo Et. Al. Vs The Secretary of Justice Et. Al.
DOCUMENTS
Ocampo et el. v. The Secretary of Justice et el. G.R. No. L-7910 (1955)*
Excerpts from the minutes of Jan. 18, 1955
In Ocampo et al. vs. The Secretary of Justice et a1., G. R. No. L-7910,
the petition was denied, without costs, due to insufficient votes to invalidate section 3 of Republic Act No. 1186.
Chief Justice Paras and Justices Padilla, Reyes (A), and Labrador
voted to uphold that particular section;
Justices Pablo, Bengzon, Montemayor, Jugo, Bautista, Concepcion
and Reyes, J.B.L., believe it is unconstitutional.
The opinions follow:
PARAS, C.j.:
Under the Judiciary Act of 1948, Republic Act No. 296. the judicial
function in Courts of First Instance was vested in District Judges, Judgesat-Large and Cadastral Judges. Sixteen Judicial Districts were constituted, and seventy-four District Judges were provided and distributed
thereover in the proportion fixed in the Act. Aside from the seventyfour District Judges, section 53 of the Act provided for the appointment
of "eighteen Judges-at-Large and fifteen Cadastral Judges who shall not
be assigned permanently to any judicial district and who shall render
duty in such district or province as may, from time to time, be designated by the Department Head." The petitioners were duly appointed
and. had qualified under said section 53, four as Judges-at-Large and
six as Cadastral Judges.
Under Republic Act No. 1186, which took effect on June 19, 1954,
several provisions of the Judiciary Act of 1948 were amended.
Now,
the judicial function in the Court of First Instance is vested in District
Judges; and although the number of Judicial Districts is maintained,
the number of District Judges has been increased to 114. Section 3
of Republic Act No. 1186, provides that "all the existing positions of Judgesat-Large and Cadastral Judges are abolished, and secticn fifty-three of
Republic Act Numbered Two Hundred and Ninety-six is hereby repealed." Shortly after the effectivity of Republic Act No. 1186, the
Secretary of Justice informed the petitioners that they had ceased as
Judges-at-Large and Cadastral Judges. The petitioners have filed the
present petition for declaratory relief and/or mandamus, for a judicial
declaration that section 3 of Republic Act No. 1186 is unconstitutional
and void, that the respective positions and offices of the petitioners under
a resolution of the
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the Judiciary Act of 1948 still exists, and that they are entitled to exercise the powers and functions. of said offices; and for a directive against
the Secretary of Justice to permit the petitioners to continue in the exercise of said powers and functions, and against the Chief Accounting
Officer and Judicial Officer of the Department of Justice to pay the petitioners their corresponding compensation beginning June 20, 1954.
Section 1 of Article VIII of the Constitution provides that "the
judicial power shall be vested in the Supreme Court and in such inferior courts as may be established by law," and section 9 of the same
Article provides that "the Members of the Supreme Court and all judges
of inferior courts shall hold office during good behavior, until they reach
the age of 70 years, or become incapacitated to discharge the duties
of their office." The power of Congress under section 1 to organize,
reorganize and even abolish courts inferior to the Supreme Court, is conceded; and the contention advanced on behalf of the petitioners is merely
that such power is restricted by and may be reconciled with section 9
in the sense that they should be allowed to continue holding their
offices during good behavior, until they reach the age of seventy years
or become incapacitated, notwithstanding the reorganization effected under Republic Act No. 1186 and the express abolition of their positions
by section 3 thereof.
In this case we have to assume, both from the explanatory note ot
the basic Bill and from the sponsorship speeches, that the main objective
of Republic Act No. 1186 is to vest the judicial function of Courts of
First Instance in District Judges, eliminating Judges-at-Large and Cadastral Judges, the creation of whose positions (by Republic Act No. 296,
section 53), as Mr. Justice Padilla says in a separate opinion, offends
against the constitutional mandate that no judge appointed for a particular district shall be transferred to another district without the approval of the Supreme Court. For under said Republic Act No. 296,
those judges could be assigned by the Secretary of Justice to any Judicial District,-a
practice undoubtedly allowing, if it had not already
allowed, the designation of any of them to try specific cases with perhaps indicated results. Indeed, the present administration is to be commended for thus totally doing away with the system of "rigodon de
jueces", which under the former law it could have maintained to its
obvious advantage. It is very significant that not a single District Judge
has been ceased out. We cannot accept the insinuation that the petitioners have been purposely removed or legislated out, because the isolated personal opinion expressed by one or two members of Congress
that undesirable judges must be weeded out, is not controlling and, as
already stated, all positions of Judges-at-Large and Cadastral Judges,
and not merely those held by the petitioners, were abolished. If petititioners were not.: after the abolition of their posts, retained in the judiciary, like the others by giving them appointment as District Judges,
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PADILLA, }.:
.In so far as the security of tenure of judges is concerned, I am in
accord with Mr. Justice Bengzon's view. A fixed tenure during good
behavior, long recognized as essential to an independent judiciary, has in
this country been translated into a constitutional ban limiting the powers
of Congress in dealing with the courts and for that reason not to be
written off with the argument that as Congress has the express authority
to establish courts inferior to the Supreme Court, it necessarily has also
the implied authority to abolish them. For how could there be a fixed
tenure if the office may at any time be abolished? As the Constitution
expressly prohibits the removal of a judge (except for cause) during
his term of office, reason dictates that the implied power to abolish courts
must be deemed withheld where its exercise would bring about what is
prohibited. What the Constitution prohibits the Congress to do directly
should not be allowed to be done by indirection, circumvention and
resort to an implied power to nullify an express constitutional mandate.
The Constitution provides and ordains that "all judges of inferior
courts shall hold office during good behavior, until they reach the age
of seventy years, or become incapacitated to discharge the duties of their
office" and "shall receive such compensation as may be fixed by law,
which shall not be diminished during their continuance in office." 1 It
also provides that "No judge appointed for a particular district shall be
designated or transferred to another district without the approval of the
Supreme Court. The Congress shall by law determine the residence of
judges of inferior courts." Z
Section 53 of Republic Act No. 296 provides:
In addition to the District Judges mentioned in section forty-nine
hereof there shall also be appointed eighteen Judges-at-large
and fifteen
Cadastral Judges who shell not be assigned permanently to any judicial
district and who shall render duty in such district or province as may,
from time to time. be designated by the Department Head.
(Underscoring supplied.)
This is the law that created or established the office of the petitioners.
The law offends against section 7, Article VIII, of the Constitution, not
only because it does not determine or fix the residence of the petitioners
as judges, as ordained bv the Constitution, but also because the authority
to designate them to render duty in districts or provinces other than those
of their residence is lodged in the Department Head alone when accoruing to the same section and article of the Constitution the authority
must be exercised with the approval of the Supreme Court. There is
no reason why section 9, Article VIII, of the Constitution should be
given effect and section 7 of the same article nullified.
The last paragraph of section 3 of Republic Act No. 1186 repeals
1 Section
2 Section
9, Article
7, supr.
VIII.
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section 53 of Republic Act 296 quoted above and the positions of Judgesat-Large and Cadastral Judge are thereby abolished. The paragraph
is assailed on the ground that it infringes upon section 9, Article VIII,
of the Constitution. By repealing section 53 of Republic Act No. 296
and abolishing the anomalous judicial positions therein created, the Congress has but rectified a grave error-with
intent, no doubt, to make
the judicial system conform to the Constitution by eliminating therefrom judges that could be moved about at the pleasure of an Executive
Department and to that extent exposed to extraneous influences. To
permit the continuance of a system that offends against the fundamental
:aw would be :a dereliction of duty on the part of Congress. On the
other hand, the Constitution is upheld and not violated where judicial
positions created or established contrary to its provisions-such
as those
held by the herein petitioners-are
abolished.
For these reasons the petition should be dismissed.
REYES, A., J., concurring:
I concur in the opinion of the Chief Justice. But I must say further that even supposing that Congress may not, as a general rule,
abolish a judicial post without allowing the incumbent to finish his term
of office, still I see weight in Mr. Justice Padilla's opinion that to allow
the petitioners herein to continue as judges-at-large and cadastral judges
without permanent assignment and forever subject to being moved from
one judicial district to another without the consent of the Supreme Court
would be to perpetuate a system repulsive to an independent judiciary
and a clear evasion of the Constitution.
LABRADOR, J.:
I do not dispute the fundamental principles which my brethren
have expounded as underlying our scheme of government. The independence of the judiciary, its inviolability against executive or legislative
encroachment and the permanence of judicial tenure are so plain as to
need elucidation. I am also aware of the fact that the judiciary is the
weakest of all the three departments of the Government. However, in
our zealousness to conserve judicial independence we should be careful
to guard against self-pity and passion taking the better part of reason
and allowing them to becloud the real issue. The question should be
dispassionately considered, bearing in mind, on the one hand, that every
presumption of good faith should be accorded a coordinate department
that had decreed the passage of the disputed legislation, especially as in
the present instance the legislative department has been expressly granted
the power to organize <?rreorganize inferior courts (Section 1, Article
VIII, Constitution of the Philippines), and on the other, the nature of
the offices abolished and the underlying causes for said abolition, as these
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The above was the set-up of judges-at-large when the Constitution was
approved. Thereafter, on November 7, 1936. Commonwealth Act No.
145 reduced the number of judges-at-large to five. (Sec. 3.) On August
19, 1938, C.A. No. 348 increased the number of judges-at-large to twelve.
(Sec. 2.)
The positions of cadastral judges were first created under C.A. No.
504, which provides:
"Sec. 1. In addition to the existing positions of judges of first
instance, there are created fifteen positions of judges of first instance
to be appointed as provided by law. Said judges shall be paid a
salary of eight thousand four hundred pesos per annum each, and shall
have the same rank, powers and privileges enjoyed by and granted
to judges of first instance,' but their jurisdiction shall be limited to
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cases an smg under the Cadastral Act and the Land Registration Act.
They shall render duty in such judicial districts or provinces as m;y,
from time to time, be ,designated by the Secretary of Justice."
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The Congress
of inferior courts."
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the residence
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