FIRST DIVISION

EQUI-ASIA PLACEMENT, INC.,

Petitioner,

- versus -

DEPARTMENT OF FOREIGN
AFFAIRS (DFA) represented ! t"e
#ON. DOMINGO L. SIA$ON, %R.,
SECRETAR&, DEPARTMENT OF
LA'OR AND EMPLO&MENT
(DOLE), represented ! #ON.
'IENVENIDO LAGUESMA,
Respondents.

G.R. N(. )*++),
Present:

PANGANIBAN, C.J.
Chairperson,
YNARES-SANTIAGO,
AUSTRIA-MARTINE,
CA!!E"O, SR., and
C#ICO-NAARIO, JJ.


Pro$%&'ated:

September 19, 2006
( - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - (


) E C I S I O N


C#ICO-NAARIO, J.:

This is a Petition *or Re+ie, on Certiorari o* the )e-ision dated . O-to/er
0112
324
and Reso&%tion dated 25 6e/r%ar7 0110o* the Co%rt o* Appea&s in CA-G.R.
SP No. 8291.. The )e-ision denied petitioner:s petition *or certiorari ,hi&e the
Reso&%tion denied its Motion *or Re-onsideration.

The Co%rt o* Appea&s s%$$ari;ed the *a-ts o* this -ase in this ,ise:

On Septe$/er 28, 0111, Mann7 de&a Rosa Ra;on, a nati+e
o* !e$er7, Batan'as and an o+erseas 6i&ipino ,or<er, died o* a-%te -ardia- arrest
,hi&e as&eep at the dor$itor7 o* the Sa$son' Te(ti&e Pro-essin' 6a-tor7 in So%th
=orea. In*or$ed thereo*, the Phi&ippine O+erseas !a/or O**i-e >PO!O? at So%th
=orea i$$ediate&7 re&a7ed the in-ident to the Phi&ippine E$/ass7 in So%th
=orea. 6orth,ith, the 3!a/or4 Atta-h@ o* the Phi&ippine E$/ass7 dispat-hed a
&etter to E&e%terio N. Gardiner, ad$inistrator o* the O+erseas Aor<ers Ae&*are
Ad$inistration >OAAA?. The &etter reads:

BCERY URGENT, PO!O has re-ent&7 re-ei+ed a report that O6A
Mann7 de&a Rosa RAON, an %ndo-%$ented ,or<er, died &ast
Sat%rda7, 28 Septe$/er, *ro$ an apparent pan-reati- atta-<
or bangungot.

A--ordin' to the +er/a& reports o* Moises and
Rona&d Re-arde, Mann7:s -o-,or<ers, he ,as *o%nd a&read7
&i*e&ess inside their D%arters at aro%nd 22:11 in the $ornin' o* the
a/o+e date. The7 r%shed hi$ to Uri #ospita& ,here the )o-tor
de-&ared hi$ dead on arri+a&.

Per in*or$ation 'athered, the de-eased is sin'&e, 09 7ears
o&d, *ro$ B%<a&, !e$er7, Batan'as. #is ne(t-o*-<ins are Mrs.
Ro,ena Ra;on >A%ntie? and Mr. Ra;on >Un-&e? ,ith te&ephone
n%$/er >1.E?.22-0E15.

PO!O is a,aitin' si'ned state$ents *ro$ the
a*ore$entioned ,or<ers ,ho pro$ised to send it /7 *a( this
a*ternoon.

Ae are a&so -oordinatin' ,ith the de-eased:s e$p&o7er *or
do-%$entation reD%ire$ents and *inan-ia& assistan-e *or the
repatriation o* the re$ains.

Ae ,i&& hi'h&7 appre-iate i* #o$e O**i-e -o%&d ad+ise the
ne(t-o*-<ins o* the %r'ent need to iss%e a Spe-ia& Po,er o*
Attorne7 >SPA? to *a-i&itate the repatriation reD%ire$ents o* the
s%/Fe-t.

In anti-ipation o* the ne(t-o*-<ins: &i<e&7 $o+e to see<
*inan-ia& assistan-e *ro$ OAAA *or the repatriation o* their &o+ed
3one4, p&ease /e ad+ised in ad+an-e that ,e ,i&& need a/o%t
USG.,111.11 to repatriate the -ada+er >to in-&%de hospita& and
$or'%e -osts? to Mani&a. (((H

In t%rn, the OAAA, thro%'h Att7. Cesar !. Cha+e;, indorsed the $atter,
*or appropriate a-tion, to )ire-tor R. Cas-o o* the Ae&*are E$p&o7$ent O**i-e o*
the Phi&ippine O+erseas E$p&o7$ent Ad$inistration >AEO-POEA?.

Upon +eri*i-ation /7 the AEO-POEA on its data /ase, it ,as dis-o+ered
that Mann7 Ra;on ,as re-r%ited and dep&o7ed /7 petitioner ED%i-Asia P&a-e$ent,
In-., and ,as sent to So%th =orea on Apri& E, 0111 to ,or<-train
at Yeon'Fin Ma-hiner7, In-. There%pon, POEA addressed the herein *irst assai&ed
te&e'ra$-dire-ti+e dated Septe$/er 00, 0111 to the PresidentIGenera& Mana'er o*
the petitioner. Ae D%ote the te&e'ra$:

BP!EASE PROCI)E PTA 3Prepaid Ti-<et Ad+i-e4 6OR T#E
REPATRIATION O6 REMAINS AN) BE!ONGINGS O6 O6A
MANNY )E!A ROSA RAON AS PER REJUEST O6
P#I!IPPINE EMBASSY, =OREA, YOU CAN COOR)INATE
AIT# YOUR 6OREIGN EMP!OYER AN) TO AA)IOAAA
>M!A? AS REGAR)S TO T#IS MATTER. YOU ARE GICEN
TAO >0? )AYS 6ROM RECEIPT #EREO6 AIT#IN A#IC#
TO PROCI)E SAI) TIC=ET AN) ASSISTANCE, =IN)!Y
SUBMIT YOUR REPORT TO ASSISTANCE AN) AE!6ARE
)ICISION >AA)?, 0I6 POEA, 6AI!URE TO )O SO AI!!
CONSTRAIN US TO IMPOSE APPROPRIATE SANCTION
UN)ER OUR RU!ESH

Respondin' thereto, petitioner, thr% its President )anie& Mor'a, "r., *a(ed
on Septe$/er 08, 0111 the *o&&o,in' $essa'e to the Assistan-e and Ae&*are
)i+ision o* the POEA:

BIn -onne-tion ,ith 7o%r te&e'ra$, dated 19I00I0111, reD%irin' %s
to report the -ir-%$stan-es s%rro%ndin' the death o* O6A
MANNY )E!A ROSA RAON in =orea and reD%estin' %s to
iss%e a PTA, et-., *or the repatriation o* the re$ains o* said O6A,
this is to report to 7o%r 'ood o**i-e the *o&&o,in':

2. The de-eased ,as dep&o7ed /7 o%r a'en-7 on Apri&
E, 0111 to Yeon'Fin Ma-hine Co$pan7 in So%th =oreaK

0. #e +io&ated his e$p&o7$entItrainin'Idispat-hin'
-ontra-ts on "%ne 0L, 0111 /7 %n&a,*%&&7 es-apin'Ir%nnin' a,a7
>TNT? *ro$ his -o$pan7 assi'n$ent ,itho%t prior =6SMB
a%thori;ation and ,or<in'Ista7in' in %n<no,n -o$pan7Ip&a-eK

E. #e a&&e'ed&7 died o* bangungot therea*terK

In +ie, thereo*, ,e -annot heed 7o%r reD%ests as e$/odied in 7o%r
te&e'ra$. #o,e+er, his re&ati+es -an a+ai& o* the /ene*its pro+ided *or /7
OAAA in -ases in+o&+in' %ndo-%$entedIi&&e'a& 6i&ipino ,or<ers a/road.

Tr%stin' *or 7o%r <ind %nderstandin'H

On the sa$e date M Septe$/er 08, 0111 M )ire-tor Ri-ardo R.
Cas-o o* the AEO-POEA sent to the petitioner the herein se-ond assai&ed
&etter-dire-ti+e, ,hi-h pertinent&7 reads:

BAe ha+e re-ei+ed a -op7 o* 7o%r *a( $essa'e
dated 08 Septe$/er 0111 as re'ards to 7o%r response to o%r
reD%est *or PTA *or a*oresaid de-eased
O6A. Ne+erthe&ess, $a7 ,e re$ind 7o% that p%rs%ant to
Se-tions L0, LE, L. and LL o* the I$p&e$entin' R%&es
Go+ernin' RA 51.0, other,ise <no,n as the Mi'rant
Aor<ers and O+erseas 6i&ipino A-t o* 299L, the repatriation
o* O6A, hisIher re$ains and transport o* his persona&
e**e-ts is the pri$ar7 responsi/i&it7 o* the prin-ipa& or
a'en-7 and to i$$ediate&7 ad+an-e the -ost o* p&ane
*are ,itho%t prior deter$ination o* the -a%se o* ,or<er:s
repatriation. The R%&es *%rther pro+ide *or the pro-ed%re to
/e *o&&o,ed in -ases ,hen the *orei'n e$p&o7erIa'en-7
*ai&s to pro+ide *or the -ost o* the repatriation, -o$p&ian-e
o* ,hi-h is p%nisha/&e /7 s%spension o* the &i-ense o* the
a'en-7 or s%-h san-tion as the Ad$inistration sha&& dee$
proper. #en-e, 7o% are reD%ired to pro+ide the PTA *or the
de-eased O6A in -o$p&ian-e ,ith the reD%ire$ent in
a--ordan-e ,ith R.A. 51.0. Yo% are 'i+en *ort7-ei'ht
>.5? ho%rs %pon re-eipt hereo* ,ithin ,hi-h to pro+ide said
ti-<et. 6ai&%re in this re'ard ,i&& -onstrain %s to i$pose the
appropriate san-tion %nder o%r r%&es.H

On Septe$/er 0N, 0111, petitioner ,rote /a-< )ire-tor Ri-ardo R.
Cas-o, th%s:

BIn -onne-tion ,ith 7o%r *a( &etter dated Septe$/er
08, 0111, re: the repatriation o* the re$ains o* the
de-eased, e(-trainee >O6A? MANNY )E!A ROSA
RAON, p&ease /e in*or$ed that the pro+isions o*
Se-tion LE as ,e&& as, and in re&ation to, Se-tion LL o* the
O$ni/%s R%&es and Re'%&ations I$p&e$entin' the Mi'rant
Aor<ers and O+erseas 6i&ipinos A-t o* 299L on the $atters
-o+erin' the *o&&o,in':

2. The responsi/i&it7 o* the a'en-7 to ad+an-e the -ost o*
p&ane *are ,itho%t prior deter$ination o* the -a%se o* the
de-eased ,or<er:s ter$ination.

0. The re-o+er7 o* the sa$e -osts *ro$ the estate o* the
dead ,or<er /e*ore the N!RC.

E. The a-tion to /e i$posed /7 POEA *or non-
-o$p&ian-e there,ith ,ithin .5 ho%rs are +io&ati+e o*
d%e pro-ess andIor the prin-ip&e on d%e de&e'ation o*
po,er.

This is so /e-a%se Se-. 2L o* R.A. 51.0 -&ear&7
-onte$p&ates prior noti-e and hearin' /e*ore
responsi/i&it7there%nder -o%&d /e esta/&ished a'ainst the
a'en-7 that sets %p the de*ense o* so&e *a%&t M in a+oidan-e
o* said responsi/i&it7 -. Besides, the se-tions in D%estion
%nd%&7 'rant the po,ers to reD%ire ad+an-e pa7$ent o* the
p&ane *are, to i$pose the -orrespondin' pena&t7 o*
s%spension in -ase o* non--o$p&ian-e there,ith, ,ithin .5
ho%rs and to re-o+er said ad+an-e pa7$ent *ro$ the dead
,or<er:s estate %pon the ret%rn o* his re$ains to the
-o%ntr7 /e*ore the N!RC, ,hen the &a, itse&* does not
e(press&7 pro+ide *or the 'rant o* s%-h po,ers.

( ( ( ( ( ( ( ( (.

P&ease pro+ide %s i$$ediate&7 ,ith the death
-erti*i-ateIpost $orte$ reportIpo&i-e report pertinent to
a/o+e as proo* o* death and -a%se thereo*.H

Nonethe&ess, and apprehensi+e o* the ad+erse reper-%ssions ,hi-h
$a7 ens%e on a--o%nt o* its non--o$p&ian-e ,ith the dire-ti+e, petitioner,
on Septe$/er 09, 0111, ad+an-ed %nder protest the -osts *or the
repatriation o* the re$ains o* the &ate Mann7 de&a Rosa Ra;on.

Therea*ter, petitioner ,ent to this Co%rt +ia the instant petition *or
-ertiorari, posin', *or O%r -onsideration, the so&e iss%e o* M

BA#ET#ER OR NOT SECTIONS L0, LE, L. AN)
LL O6 T#E OMNIBUS RU!ES AN) REGU!ATIONS
IMP!EMENTING T#E MIGRANT AOR=ERS AN)
OCERSEAS 6I!IPINOS ACT O6 299L >R.A. 51.0?,
ISSUE) BY )6A AN) POEA, A#IC# POEA
SUMMARI!Y OR)ERE) T#E #EREIN PETITIONER
TO COMP!Y CI-A-CI T#E PAYMENT IN A)CANCE
O6 T#E EOPENSES 6OR T#E REPATRIATION O6 T#E
REMAINS O6 A )ECEASE) AOR=ER-TRAINEE
A#O, AT T#E TIME O6 #IS )EAT#, #AS NO
EOISTING EMP!OYMENT >)ISPATC#ING?
CONTRACT AIT# EIT#ER SAI) PETITIONER OR
#IS 6OREIGN PRINCIPA! AN) NO CA!I) CISA OR
IS NOT AOR=ING AIT# T#E 6OREIGN
PRINCIPA! TO A#IC# PETITIONER )EP!OYE)
#IM, IS I!!EGA! AN)IOR CIO!ATICE O6 )UE
PROCESS SUC# T#AT POEA ACTE) AIT#OUT 3OR
IN4 EOCESS O6 ITS "URIS)ICTION AN)IOR IN
GRACE ABUSE O6 )ISCRETION IN ISSUING SAI)
OR)ER TO PAY SAI) EOPENSES.H
304


On . O-to/er 0112, the Co%rt o* Appea&s rendered the )e-ision ,hi-h is
no, the s%/Fe-t o* the present petition. Thedispositi+e portion o* the Co%rt o*
Appea&s: )e-ision states:

A#ERE6ORE, *or &a-< o* $erit, the instant petition is DENIED and is
a--ordin'&7 DISMISSED.
3E4


In dis$issin' the petition *or certiorari, the Co%rt o* Appea&s stated that
petitioner ,as $ain&7 a--%sin' the Phi&ippine O+erseas E$p&o7$ent
Ad$inistration >POEA? o* 'ra+e a/%se o* dis-retion ,hen it ordered petitioner to
pa7, in ad+an-e, the -osts *or the repatriation o* the re$ains o* the de-eased
Mann7 de&a Rosa Ra;on.

The Co%rt o* Appea&s r%&ed that the POEA did not -o$$it an7 'ra+e a/%se
o* dis-retion as its dire-ti+es to petitioner ,ere iss%ed p%rs%ant to e(istin' &a,s and
re'%&ations.
3.4
It &i<e,ise he&d that a petition *or certiorari, ,hi-h ,as the re$ed7
a+ai&ed o* /7 petitioner, is not the proper re$ed7 as the sa$e is on&7 a+ai&a/&e
,hen Bthere is no appea&, or an7 p&ain, speed7, and adeD%ate re$ed7 in the
ordinar7 -o%rse o* &a,.H
3L4
Se-tion 80 o* the O$ni/%s R%&es and Re'%&ations
I$p&e$entin' the Mi'rant Aor<ers and O+erseas 6i&ipinos A-t o* 299L or
Rep%/&i- A-t 51.0 >BO$ni/%s R%&esH? states that Bthe !a/or Ar/iters o* N!RC
sha&& ha+e the ori'ina& and e(-&%si+e F%risdi-tion to hear and de-ide a&& -&ai$s
arisin' o%t o* e$p&o7er-e$p&o7ee re&ationship or /7 +irt%e o* an7 &a, or -ontra-t
in+o&+in' 6i&ipino ,or<ers *or o+erseas dep&o7$ent in-&%din' -&ai$s *or a-t%a&,
$ora&, e(e$p&ar7 and other *or$s o* da$a'es, s%/Fe-t to the r%&es and pro-ed%res
o* the N!RC.H There is, there*ore, an adeD%ate re$ed7 a+ai&a/&e to petitioner.

!ast&7, the Co%rt o* Appea&s de-&ared that it -o%&d not stri<e do,n as
%n-onstit%tiona& Se-tions L0, LE, L., and LL o* the O$ni/%s R%&es as the
%n-onstit%tiona&it7 o* a stat%te or r%&es $a7 not /e passed %pon %n&ess the iss%e is
dire-t&7 raised in an appropriate pro-eedin'.
384

In the present re-o%rse, petitioner s%/$its the *o&&o,in' iss%es *or o%r
-onsideration:

2. The Co%rt o* Appea&s erred in the appre-iation o* the iss%e as it $ista<en&7
-onsidered, in dis$issin' the petition /e*ore it, that petitioner is -ontestin' the
-o$p&ian-e and -on*or$it7 o* the POEA dire-ti+es ,ith Se-tions L0, LE, L., and
LL o* the O$ni/%s R%&es and Re'%&ations i$p&e$entin' in parti-%&ar Se-tion 2L
o* RA 51.0K

0. The Co%rt o* Appea&s, in dis$issin' the petition, a'ain erred in r%&in' that
-onstit%tiona& D%estions -annot /e passed %pon and adF%d'ed in a spe-ia& -i+i&
a-tion *or certiorari %nder R%&e 8L o* the 299N R%&es o* Ci+i& Pro-ed%reK

E. The Co%rt o* Appea&s erred in not ho&din' that, %nder the *a-ts o* the -ase
that 'a+e rise to the petition /e*ore it, the sa$e se-tions o* the said r%&es and
re'%&ations are i&&e'a&, in+a&id andIor +io&ati+e o* the ri'ht o* petitioner to d%e
pro-ess o* &a, and, there*ore, the POEA dire-ti+es iss%ed p%rs%ant thereto
-onstit%te a-ts -o$$itted ,itho%t, or in e(-ess o*, F%risdi-tion andIor in 'ra+e
a/%se o* dis-retion.
3N4

In O%r Reso&%tion o* 01 No+e$/er 0110, ,e 'a+e d%e -o%rse to the present
petition and dire-ted the parties to s%/$it their respe-ti+e $e$oranda.
354
On 05
A%'%st 0118, ,e reso&+ed to dispense ,ith the $e$orand%$ o* the estateIheirs o*
de-eased Mann7 de&a Rosa Ra;on.

At the -enter o* this petition are the *o&&o,in' pro+isions o* the o$ni/%s
r%&es:

Se-tion L0. Pr-./r! Resp(ns--0-t! 1(r Rep/tr-/t-(n. M The repatriation
o* the ,or<er, or hisIher re$ains, and the transport o* hisIher persona& e**e-ts
sha&& /e the pri$ar7 responsi/i&it7 o* the prin-ipa& or a'en-7 ,hi-h re-r%ited or
dep&o7ed hi$Iher a/road. A&& -osts attendant thereto sha&& /e /orne /7 the
prin-ipa& or the a'en-7 -on-erned.

Se-tion LE. Rep/tr-/t-(n (1 2(r3ers. M The pri$ar7 responsi/i&it7 to
repatriate entai&s the o/&i'ation on the part o* prin-ipa& or a'en-7 to ad+an-e the
-ost o* p&ane *are and to i$$ediate&7 repatriate the ,or<er sho%&d the need *or it
arise, ,itho%t a prior deter$ination o* the -a%se o* the ter$ination o* the ,or<er:s
e$p&o7$ent. #o,e+er, a*ter the ,or<er has ret%rned to the -o%ntr7, the prin-ipa&
or a'en-7 $a7 re-o+er the -ost o* repatriation *ro$ the ,or<er i* the ter$ination
o* e$p&o7$ent ,as d%e so&e&7 to hisIher *a%&t.

E+er7 -ontra-t *or o+erseas e$p&o7$ent sha&& pro+ide *or the pri$ar7
responsi/i&it7 o* a'en-7 to ad+an-e the -ost o* p&ane *are, and the o/&i'ation o*
the ,or<er to re*%nd the -ost thereo* in -ase hisIher *a%&t is deter$ined /7 the
!a/or Ar/iter.

Se-tion L.. Rep/tr-/t-(n Pr(4ed5re. M Ahen a need *or repatriation
arises and the *orei'n e$p&o7er *ai&s to pro+ide *or it -ost, the responsi/&e
personne& at site sha&& si$%&taneo%s&7 noti*7 OAAA and the POEA o* s%-h
need. The POEA sha&& noti*7 the a'en-7 -on-erned o* the need *or
repatriation. The a'en-7 sha&& pro+ide the p&ane ti-<et or the prepaid ti-<et ad+i-e
>PTA? to the 6i&ipinos Reso%r-e Center or to the appropriate Phi&ippine E$/ass7K
and noti*7 POEA o* s%-h -o$p&ian-e. The POEA sha&& in*or$ OAAA o* the
a-tion o* the a'en-7.

Se-tion LL. A4t-(n (n N(n-C(.p0-/n4e. M I* the e$p&o7$ent a'en-7
*ai&s to pro+ide the ti-<et or PTA ,ithin .5 ho%rs *ro$ re-eipt o* the noti-e, the
POEA sha&& s%spend the &i-ense o* the a'en-7 or i$pose s%-h san-tions as it $a7
dee$ ne-essar7. Upon noti-e *ro$ the POEA, OAAA sha&& ad+an-e the -osts o*
repatriation ,ith re-o%rse to the a'en-7 or prin-ipa&. The ad$inistrati+e san-tion
sha&& not /e &i*ted %nti& the a'en-7 rei$/%rses the OAAA o* the -ost o*
repatriation ,ith &e'a& interest.

Said pro+isions, on the other hand, are s%pposed to i$p&e$ent Se-tion 2L o*
Rep%/&i- A-t No. 51.0
394
,hi-h pro+ides:

SEC. 2L. Repatriation of Workers; Eergenc! Repatriation "un#. M The
repatriation o* the ,or<er and the transport o* his persona& /e&on'in's sha&& /e the
pri$ar7 responsi/i&it7 o* the a'en-7 ,hi-h, re-r%ited or dep&o7ed the ,or<er
o+erseas. A&& -osts attendant to repatriation sha&& /e /orne /7 or -har'ed to the
a'en-7 -on-erned andIor its prin-ipa&. !i<e,ise, the repatriation o* re$ains and
transport o* the persona& /e&on'in's o* a de-eased ,or<er and a&& -osts attendant
thereto sha&& /e /orne /7 the prin-ipa& andIor the &o-a& a'en-7. #o,e+er, in -ases
,here the ter$ination o* e$p&o7$ent is d%e so&e&7 to the *a%&t o* the ,or<er, the
prin-ipa&Ie$p&o7er or a'en-7 sha&& not in an7 $anner /e responsi/&e *or the
repatriation o* the *or$er andIor his /e&on'in's.

Petitioner -ontends that the Co%rt o* Appea&s $isappre-iated the iss%e it
presented in its petition *or certiorari ,hen, instead o* reso&+in' ,hether Se-tions
L0, LE, L., and LL o* the O$ni/%s R%&es are i&&e'a& and +io&ati+e o* d%e pro-ess, it
$ere&7 -on*ined itse&* to the D%estion o* ,hether or not the POEA -o$$itted 'ra+e
a/%se o* dis-retion in iss%in' its dire-ti+es o* 00 Septe$/er 0111 and 0N
Septe$/er 0111.

Petitioner a&so -ontends that, -ontrar7 to the *indin' o* the Co%rt o* Appea&s,
a spe-ia& -i+i& a-tion *or certiorari is the appropriate re$ed7 to raise -onstit%tiona&
iss%es.

A&so, petitioner insists that the s%/Fe-t portions o* the o$ni/%s r%&es are
in+a&id on the 'ro%nd that Se-tion 2L o* Rep%/&i- A-t No. 51.0 does not i$pose on
a re-r%it$ent a'en-7 the pri$ar7 responsi/i&it7 *or the repatriation o* a de-eased
O+erseas 6i&ipino Aor<er >O6A?, ,hi&e Se-tion L0 o* the O$ni/%s R%&es %nd%&7
i$poses s%-h /%rden on a p&a-e$ent a'en-7.

Moreo+er, petitioner ar'%es that the ,ord B&i<e,iseH at the start o* the third
senten-e o* Se-tion 2L o* Rep%/&i- A-t No. 51.0 is %sed $ere&7 as a -onne-ti+e
,ord indi-atin' the si$i&arit7 /et,een a re-r%it$ent a'en-7:s *inan-ia& o/&i'ation
in the repatriation o* &i+in' and a de-eased O6A. It does not, ho,e+er, ne-essari&7
$a<e a p&a-e$ent a'en-7 pri$ari&7 responsi/&e *or the repatriation o* a de-eased
O6A %n&i<e in the -ase o* an O6A ,ho is a&i+e.

As *or Se-tion LE o* the O$ni/%s R%&es, petitioner s%/$its that the sa$e is
in+a&id as Se-tion 2L o* Rep%/&i- A-t No. 51.0 -&ear&7 states that a p&a-e$ent
a'en-7 sha&& not in an7 $anner /e responsi/&e *or the repatriation o* the de-eased
O6A and his or her /e&on'in's sho%&d the ter$ination o* the O6A:s e$p&o7$ent
/e d%e to his or her *a%&t. #o,e+er, as Se-tion LE o* the O$ni/%s R%&es stip%&ates
that a p&a-e$ent a'en-7 or prin-ipa& sha&& /ear the pri$ar7 responsi/i&it7 o*
repatriatin' an O6A and o* ad+an-in' the pa7$ent *or his or her p&ane *are,
the o$i/%s r%&es, as *ar as this se-tion is -on-erned, is an in+a&id e(er-ise o*
&e'is&ati+e po,er /7 an ad$inistrati+e a'en-7.

In addition, petitioner -&ai$s Se-tion LE o* the O$ni/%s R%&es +io&ates the
d%e pro-ess -&a%se o* the -onstit%tion as it depri+es the dep&o7in' a'en-7 o* the
ri'ht to prior noti-e and hearin' thro%'h ,hi-h it -an pro+e that it sho%&d not /ear
the /%rden o* repatriatin' an O6A.

6ina&&7, petitioner points o%t that it sho%&d /e the O+erseas Aor<ers Ae&*are
Ad$inistration ,hi-h sho%&d ad+an-e the -osts o* repatriation o* the
de-eased Ra;on ,ith the reso%r-es -o$in' o%t o* the e$er'en-7 repatriation *%nd
o* said a'en-7.

The So&i-itor Genera& *or its part -o%nters that Se-tions L0, LE, L., and LL o*
the O$ni/%s R%&es are +a&id D%asi-&e'is&ati+e a-ts o* respondents )epart$ent o*
6orei'n A**airs and )epart$ent o* !a/or and E$p&o7$ent.
3214
Be-a%se o* this, the
reD%ire$ents o* prior noti-e and hearin' are not essentia&. Besides, there are -ases
,here e+en in the e(er-ise o* D%asi-F%di-ia& po,er, ad$inistrati+e a'en-ies are
a&&o,ed, sans prior noti-e and hearin', to e**e-t%ate $eas%res a**e-tin' pri+ate
propert7, s%-h as:

2? 364or the s%$$ar7 a/ate$ent o* n%isan-e per se ,hi-h a**e-ts the i$$ediate
sa*et7 o* persons and propert7, or 0? in s%$$ar7 pro-eedin's o*distraint and &e+7
%pon the propert7 o* de&inD%ent ta(pa7ers in the -o&&e-tion o* interna& re+en%e
ta(es, *ees or -har'es or an7 in-re$ent thereto, or E? in the pre+enti+e s%spension
o* a p%/&i- o**i-er pendin' in+esti'ation. ( ( (.
3224


The So&i-itor Genera& a&so adds that sin-e petitioner is en'a'ed in the
re-r%it$ent o* 6i&ipino ,or<ers *or ,or< a/road, the nat%re o* its /%siness -a&&s *or
the e(er-ise o* the state:s po&i-e po,er in order to sa*e'%ard the ri'hts and ,e&*are
o* the 6i&ipino &a/orers. One s%-h $eas%re is the pri$ar7 responsi/i&it7 i$posed
%pon p&a-e$ent a'en-ies ,ith re'ard to the repatriation o* an O6A or o* his
re$ains.

The So&i-itor Genera& a&so ar'%es that the ,ordin' o* Se-tion 2L o* Rep%/&i-
A-t No. 51.0 &ea+es no do%/t that a re-r%it$ent a'en-7 sha&& /ear the pri$ar7
responsi/i&it7 *or the repatriation o* an O6A ,hether the &atter is dead or a&i+e.

!ast&7, the So&i-itor Genera& insists that a-tions assai&in' the +a&idit7 o*
i$p&e$entin' r%&es and re'%&ations are ,ithin the ori'ina& F%risdi-tion o* the
re'iona& tria& -o%rts.

Ae sha&& *irst address the pro-ed%ra& D%estion in+o&+ed in the present
petition.

There is no den7in' that re'%&ar -o%rts ha+e F%risdi-tion o+er -ases in+o&+in'
the +a&idit7 or -onstit%tiona&it7 o* a r%&e or re'%&ation iss%ed /7 ad$inistrati+e
a'en-ies. S%-h F%risdi-tion, ho,e+er, is not &i$ited to the Co%rt o* Appea&s or to
this Co%rt a&one *or e+en the re'iona& tria& -o%rts -an ta<e -o'ni;an-e o* a-tions
assai&in' a spe-i*i- r%&e or set o* r%&es pro$%&'ated /7 ad$inistrati+e
/odies. Indeed, the Constit%tion +ests the po,er o* F%di-ia& re+ie, or the po,er to
de-&are a &a,, treat7, internationa& or e(e-%ti+e a'ree$ent, presidentia& de-ree,
order, instr%-tion, ordinan-e, or re'%&ation in the -o%rts, in-&%din' the re'iona& tria&
-o%rts.
3204


Se-tion 2, R%&e 8L o* the 299N R%&es o* Ci+i& Pro-ed%re states:

SECTION 2. $etition for Certiorari. M Ahen an7 tri/%na&, /oard or
o**i-er e(er-isin' F%di-ia& or D%asi-F%di-ia& *%n-tions has a-ted ,itho%t or in
e(-ess o* its or his F%risdi-tion, or ,ith 'ra+e a/%se o* dis-retion a$o%ntin' to
&a-< or e(-ess o* F%risdi-tion, and there is no appea&, nor an7 p&ain, speed7, and
adeD%ate re$ed7 in the ordinar7 -o%rse o* &a,, a person a''rie+ed there/7 $a7
*i&e a +eri*ied petition in the proper -o%rt, a&&e'in' the *a-ts ,ith -ertaint7 and
pra7in' that F%d'$ent /e rendered ann%&&in' or $odi*7in' the pro-eedin's o*
s%-h tri/%na&, /oard or o**i-er, and 'rantin' s%-h in-identa& re&ie*s as &a, and
F%sti-e $a7 reD%ire.

The petition sha&& /e a--o$panied /7 a -erti*ied tr%e -op7 o* the
F%d'$ent, order or reso&%tion s%/Fe-t thereo*, -opies o* a&& p&eadin's and
do-%$ents re&e+ant and pertinent thereto, and a s,orn -erti*i-ation o* non-*or%$
shoppin' as pro+ided in the third para'raph o* Se-tion E, R%&e .8.


6ro$ this, it is -&ear that in order *or a petition *or certiorari to prosper, the
*o&&o,in' reD%isites $%st /e present: >2? the ,rit is dire-ted a'ainst a tri/%na&, a
/oard or an o**i-er e(er-isin' F%di-ia& or D%asi-F%di-ia& *%n-tionsK >0? s%-h
tri/%na&, /oard or o**i-er has a-ted ,itho%t or in e(-ess o* F%risdi-tion, or ,ith
'ra+e a/%se o* dis-retion a$o%ntin' to &a-< or e(-ess o* F%risdi-tionK and >E? there
is no appea& or an7 p&ain, speed7 and adeD%ate re$ed7 in the ordinar7 -o%rse o*
&a,.

It /ears e$phasi;in' that ad$inistrati+e /odies are +ested ,ith t,o /asi-
po,ers, the D%asi-&e'is&ati+e and the D%asi-F%di-ia&.
32E4
In %be&&a' Jr. v. Civi&
Service Coission'
32.4
,e dis-%ssed the nat%re o* these po,ers to /e M

In e(er-isin' its D%asi-F%di-ia& *%n-tion, an ad$inistrati+e /od7 adF%di-ates
the ri'hts o* persons /e*ore it, in a--ordan-e ,ith the standards &aid do,n /7 the
&a,. The deter$ination o* *a-ts and the app&i-a/&e &a,, as /asis *or o**i-ia& a-tion
and the e(er-ise o* F%di-ia& dis-retion, are essentia& *or the per*or$an-e o* this
*%n-tion. On these -onsiderations, it is e&e$entar7 that d%e pro-ess reD%ire$ents,
as en%$erated in %ng (iba!, $%st /e o/ser+ed. These reD%ire$ents in-&%de prior
noti-e and hearin'.

On the other hand, D%asi-&e'is&ati+e po,er is e(er-ised /7 ad$inistrati+e
a'en-ies thro%'h the pro$%&'ation o* r%&es and re'%&ations ,ithin the -on*ines o*
the 'rantin' stat%te and the do-trine o* non-de&e'ation o* -ertain po,ers *&o,in'
*ro$ the separation o* the 'reat /ran-hes o* the 'o+ern$ent. Prior noti-e to and
hearin' o* e+er7 a**e-ted part7, as e&e$ents o* d%e pro-ess, are not reD%ired sin-e
there is no deter$ination o* past e+ents or *a-ts that ha+e to /e esta/&ished or
as-ertained. As a 'enera& r%&e, prior noti-e and hearin' are not essentia& to the
+a&idit7 o* r%&es or re'%&ations pro$%&'ated to 'o+ern *%t%re -ond%-t.

In this -ase, petitioner assai&s -ertain pro+isions o* the O$ni/%s R%&es.
#o,e+er, these r%&es ,ere -&ear&7 pro$%&'ated /7 respondents )epart$ent o*
6orei'n A**airs and )epart$ent o* !a/or and E$p&o7$ent in the e(er-ise o* their
D%asi-&e'is&ati+e po,ers or the a%thorit7 to pro$%&'ate r%&es and
re'%&ations. Be-a%se o* this, petitioner ,as, th%s, $ista<en in a+ai&in' hi$se&* o*
the re$ed7 o* an ori'ina& a-tion *or certiorari as o/+io%s&7, on&7 F%di-ia& or D%asi-
F%di-ia& a-ts are proper s%/Fe-ts thereo*. I* on&7 *or these, the petition deser+es
o%tri'ht dis$issa&. Be that as it $a7, ,e sha&& pro-eed to reso&+e the s%/stanti+e
iss%es raised in this petition *or re+ie, in order to *ina&&7 re$o+e the do%/t o+er
the +a&idit7 o* Se-tions L0, LE, L., and LL o* the O$ni/%s R%&es.

It is no, ,e&&-sett&ed that de&e'ation o* &e'is&ati+e po,er to +ario%s
spe-ia&i;ed ad$inistrati+e a'en-ies is a&&o,ed in the *a-e o* in-reasin' -o$p&e(it7
o* $odern &i*e. Gi+en the +o&%$e and +ariet7 o* intera-tions in+o&+in' the
$e$/ers o* toda7:s so-iet7, it is do%/t*%& i* the &e'is&at%re -an pro$%&'ate &a,s
dea&in' ,ith the $in%tiae aspe-ts o* e+er7da7 &i*e. #en-e, the need to de&e'ate to
ad$inistrati+e /odies, as the prin-ipa& a'en-ies tas<ed to e(e-%te &a,s ,ith respe-t
to their spe-ia&i;ed *ie&ds, the a%thorit7 to pro$%&'ate r%&es and re'%&ations to
i$p&e$ent a 'i+en stat%te and e**e-t%ate its po&i-ies.
32L4
A&& that is reD%ired *or the
+a&id e(er-ise o* this po,er o* s%/ordinate &e'is&ation is that the re'%&ation $%st /e
'er$ane to the o/Fe-ts and p%rposes o* the &a,K and that the re'%&ation /e not in
-ontradi-tion to, /%t in -on*or$it7 ,ith, the standards pres-ri/ed /7 the &a,.
3284
Under the *irst test or the so--a&&ed -o$p&eteness test, the &a, $%st /e -o$p&ete
in a&& its ter$s and -onditions ,hen it &ea+es the &e'is&at%re s%-h that ,hen it
rea-hes the de&e'ate, the on&7 thin' he ,i&& ha+e to do is to en*or-e it.
32N4
The
se-ond test or the s%**i-ient standard test, $andates that there sho%&d /e adeD%ate
'%ide&ines or &i$itations in the &a, to deter$ine the /o%ndaries o* the de&e'ate:s
a%thorit7 and pre+ent the de&e'ation *ro$ r%nnin' riot.
3254

Ae reso&+e that the D%estioned pro+isions o* the O$ni/%s R%&es $eet these
reD%ire$ents.

Basi-a&&7, petitioner is i$p%'nin' the s%/Fe-t pro+isions o* the O$ni/%s
R%&es *or a&&e'ed&7 e(pandin' the s-ope o* Se-tion 2L o* Rep%/&i- A-t No. 51.0
/7: first' i$posin' %pon it the pri$ar7 o/&i'ation to repatriate the re$ains o* the
de-eased Ra;on in-&%din' the d%t7 to ad+an-e the -ost o* the p&ane *are *or the
transport o* Ra;on:s re$ainsK and secon#, /7 orderin' it to do so ,itho%t prior
deter$ination o* the e(isten-e o* e$p&o7er-e$p&o7ee re&ationship /et,een itse&*
and Ra;on.

Petitioner:s ar'%$ent that Se-tion 2L does not pro+ide that it sha&& /e
pri$ari&7 responsi/&e *or the repatriation o* a de-eased O6A is spe-io%s and p&ain
nitpi-<in'. Ahi&e Rep%/&i- A-t No. 51.0 does not e(press&7 state that petitioner
sha&& /e pri$ari&7 o/&i'ated to transport /a-< here to the Phi&ippines the re$ains o*
the de-eased Ra;on, ne+erthe&ess, s%-h d%t7 is i$posed %pon hi$ as the stat%te
-&ear&7 di-tates that Bthe repatriation o* re$ains and transport o* the persona&
/e&on'in's o* a de-eased ,or<er and a&& -osts attendant thereto s)a&& /e /orne /7
the prin-ipa& an#*or the &o-a& a'en-7.H The $andator7 nat%re o* said o/&i'ation is
-hara-teri;ed /7 the &e'is&at%re:s %se o* the ,ord Bsha&&.H That the -on-erned
'o+ern$ent a'en-ies opted to de$and the per*or$an-e o* said responsi/i&it7
so&e&7 %pon petitioner does not $a<e said dire-ti+es in+a&id as the &a, p&ain&7
o/&i'es a &o-a& p&a-e$ent a'en-7 s%-h as herein petitioner to /ear the /%rden o*
repatriatin' the re$ains o* a de-eased O6A ,ith or ,itho%t re-o%rse to the
prin-ipa& a/road. In this re'ard, ,e see no reason to in+a&idate Se-tion L0 o* the
o$ni/%s r%&es as Rep%/&i- A-t No. 51.0 itse&* per$its the sit%ation ,herein a &o-a&
re-r%it$ent a'en-7 -an /e he&d e(-&%si+e&7 responsi/&e *or the repatriation o* a
de-eased O6A.

Nor do ,e see an7 reason to sta$p Se-tion LE o* the O$ni/%s R%&es as
in+a&id *or a&&e'ed&7 -ontra+enin' Se-tion 2L o* the &a, ,hi-h states that a
p&a-e$ent a'en-7 sha&& not /e responsi/&e *or a ,or<er:s repatriation sho%&d the
ter$ination o* the e$p&o7er-e$p&o7ee re&ationship /e d%e to the *a%&t o* the
O6A. To o%r $ind, the stat%te $ere&7 states the 'enera& prin-ip&e that in -ase the
se+eran-e o* the e$p&o7$ent ,as /e-a%se o* the O6A:s o,n %ndoin', it is on&7
*air that he or she sho%&d sho%&der the -osts o* his or her ho$e-o$in'. Se-tion 2L
o* Rep%/&i- A-t No. 51.0, ho,e+er, -ertain&7 does not pre-&%de a p&a-e$ent
a'en-7 *ro$ esta/&ishin' the -ir-%$stan-es s%rro%ndin' an O6A:s dis$issa& *ro$
ser+i-e in an appropriate pro-eedin'. As s%-h deter$ination ,o%&d $ost &i<e&7
ta<e so$e ti$e, it is on&7 proper that an O6A /e /ro%'ht /a-< here in o%r -o%ntr7
at the soonest possi/&e ti$e &est he re$ains stranded in a *orei'n &and d%rin' the
,ho&e ti$e that re-r%it$ent a'en-7 -ontests its &ia/i&it7 *or repatriation. As apt&7
pointed o%t /7 the So&i-itor Genera& M

S%-h a sit%ation is %na--epta/&e.

0.. This is the sa$e reason ,h7 repatriation is $ade /7 &a, an
o/&i'ation o* the a'en-7 andIor its prin-ipa& ,itho%t the need o* *irst deter$inin'
the -a%se o* the ter$ination o* the ,or<er:s e$p&o7$ent. Repatriation is in e**e-t
an %n-onditiona& responsi/i&it7 o* the a'en-7 andIor its prin-ipa& that -annot /e
de&a7ed /7 an in+esti'ation o* ,h7 the ,or<er ,as ter$inated *ro$
e$p&o7$ent. To /e &e*t stranded in a *orei'n &and ,itho%t the *inan-ia& $eans to
ret%rn ho$e and /ein' at the $er-7 o* %ns-r%p%&o%s indi+id%a&s is a +io&ation o*
the O6A:s di'nit7 and his h%$an ri'hts. These are the sa$e ri'hts R.A. No.
51.0 see<s to prote-t.
3294

As *or the s%**i-ien-7 o* standard test, this Co%rt had, in the past, a--epted as
s%**i-ient standards the *o&&o,in': Bp%/&i- interest,H BF%sti-e and eD%it7,H Bp%/&i-
-on+enien-e and ,e&*are,H and Bsi$p&i-it7, e-ono$7 and ,e&*are.H
3014

In this -ase, ,e ho&d that the &e'is&at%re:s prono%n-e$ents that Rep%/&i- A-t
No. 51.0 ,as ena-ted ,ith the tho%'ht o* %pho&din' the di'nit7 o* the 6i&ipinos
$a7 the7 /e here or a/road and that the State sha&& at a&& ti$es a**ord *%&&
prote-tion to &a/or, /oth here and a/road, $eet the reD%ire$ent and pro+ide
eno%'h '%idan-e *or the *or$%&ation o* the o$ni/%s r%&es.

2#EREFORE, the Petition *or Re+ie, is DENIED. The Co%rt o*
Appea&s: )e-ision dated . O-to/er 0112 and Reso&%tion dated 25 6e/r%ar7
0110 are here/7 AFFIRMED. Aith -osts.

SO ORDERED.



MINITA V. C#ICO-NA$ARIO
Asso-iate "%sti-e



AE CONCUR:


ARTEMIO V. PANGANI'AN
Chie* "%sti-e
Chairperson



CONSUELO &NARES-SANTIAGO MA. ALICIA AUSTRIA-MARTINE$
Asso-iate "%sti-e Asso-iate "%sti-e





ROMEO %. CALLE%O, SR.
Asso-iate "%sti-e


C E R T I F I C A T I O N

P%rs%ant to Arti-&e CIII, Se-tion 2E o* the Constit%tion, it is here/7 -erti*ied
that the -on-&%sions in the a/o+e )e-ision ,ere rea-hed in -ons%&tation /e*ore the
-ase ,as assi'ned to the ,riter o* the opinion o* the Co%rt:s )i+ision.



ARTEMIO V. PANGANI'AN
Chie* "%sti-e

324
Penned /7 Asso-iate "%sti-e Can-io C. Gar-ia >no, a $e$/er o* this Co%rt? and Asso-iate
"%sti-es #i&arion !. AD%ino and Ed'ardo P. Cr%;, -on-%rrin'K ro&&o, pp. ..-LL.
304
Ro&&o, pp. .L-L1.
3E4
Id. at LL.
3.4
Id. at LE.
3L4
Id. at 22.
384
Id. at 20.
3N4
Id. at 08N-085.
354
Id. at 0.2-0.0.
394
AN ACT TO INSTITUTE T#E PO!ICIES O6 OCERSEAS EMP!OYMENT AN) ESTAB!IS# A
#IG#ER STAN)AR) O6 PROTECTION AN) PROMOTION O6 T#E AE!6ARE O6 MIGRANT
AOR=ERS, T#EIR 6AMI!IES AN) OCERSEAS 6I!IPINOS IN )ISTRESS, AN) 6OR OT#ER
PURPOSES.
3214
Si'ned /7 Se-retar7 )o$in'o !. Sia;on, "r. *or the )epart$ent o* 6orei'n A**airs and Se-retar7
!eonardo A. J%is%$/in' *or the )epart$ent o* !a/or and E$p&o7$ent.
3224
Ro&&o, p. 09..
3204
Sart Counications' Inc. +SM%R(, v. Nationa& (e&ecounications Coission +N(C,, G.R. No.
2L2915, 20 A%'%st 011E, .15 SCRA 8N5, 859.
32E4
Eastern S)ipping -ines' Inc. v. $)i&ippine .verseas Ep&o!ent %genc!, G.R. No. !-N88EE, 25 O-to/er
2955, 288 SCRA LEE, L.8-L.N.
32.4
G.R. No. 2L0LN., 2N No+e$/er 011., ..0 SCRA L1N, L09-LE1.
32L4
/e&tran v. Secretar! of 0ea&t), G.R. No. 2EE8.1, 0L No+e$/er 011L, .N8 SCRA 285, 292.
3284
()e Conference of Maritie Manning %gencies v. $)i&ippine .verseas Ep&o!ent %genc!, E2E Phi&.
L90, 818 >299L?.
32N4
Eastern S)ipping -ines' Inc. v. $)i&ippine .verseas Ep&o!ent %genc!' s%pra note 2E at L.E.
3254
Id.
3294
Ro&&o, p. E11.
3014
S%pra note 2E at LEN.