EN BANC

G.R. No. 133132 January 25, 2000

ALEXIS C. CANONIZADO, EDGAR DULA TORRES, and ROGELIO A. PUREZA,

petitioners,
vs.
HON. ALEXANDER P. AGUIRRE, as Executive Secretary, HON. EMILIA T.
BONCODIN, as Secretary of Budget and Management, JOSE PERCIVAL L. ADIONG,
ROMEO L. CAIRME and VIRGINIA U. CRISTOBAL, respondents.

GONZAGA-REYES, J.:

The central issue posed before this Court in the present case is the constitutionality of Republic
Act No. 8851 (RA 8551), otherwise known as the "Philippine National Police Reform and
Reorganization Act of 1998,"1 by virtue of which petitioners herein, who were all members of the
National Police Commission (NAPOLCOM), were separated from office. Petitioners claim that
such law violates their constitutionally guaranteed right to security of tenure.

The NAPOLCOM was originally created under Republic Act No. 6975 (RA 6975), entitled "An
Act Establishing The Philippine National Police Under A Reorganized Department Of The
Interior And Local Government, And For Other Purposes." Under RA 6975, the members of the
NAPOLCOM were petitioners Edgar Dula Torres, Alexis C. Canonizado, Rogelio A. Pureza and
respondent Jose Percival L. Adiong. Dula Torres was first appointed to the NAPOLCOM on
January 8, 1991 for a six year term. He was re-appointed on January 23, 1997 for another six
years. Canonizado was appointed on January 25, 1993 to serve the unexpired term of another
Commissioner which ended on December 31, 1995. On August 23, 1995, Canonizado was
re-appointed for another six years. Pureza was appointed on January 2, 1997 for a similar term of
six years. Respondent Adiong's appointment to the NAPOLCOM was issued on July 23, 1996.
None of their terms had expired at the time the amendatory law was passed.2

On March 6, 1998, RA 8551 took effect; it declared that the terms of the current Commissioners
were deemed as expired upon its effectivity. Pursuant thereto, President Ramos appointed Romeo
L. Cairme on March 11, 1998 as a member of the NAPOLCOM for a full six year term. On the
same date, Adiong, was given a term extension of two years since he had served less than two
years of his previous term. Cairme and Adiong both took their oaths of office on April 6, 1998.3
Completing the membership of the NAPOLCOM are Leo S. Magahum and Cleofe M. Factoran,
who were appointed by President Estrada on June 30, 1998 and who took their oaths of office on
July 2, 1998.4

According to petitioners, sections 4 and 8 of RA 8551 are unconstitutional. Section 4, amending

section 13 of Republic Act No. 6975, provides —

Sec. 13. Creation and Composition. — A National Police Commission, hereinafter referred to as
the Commission, is hereby created for the purpose of effectively discharging the functions
prescribed in the Constitution and provided in this Act. The Commission shall be an agency
attached to the Department for policy and program coordination. It shall be composed of a
Chairperson, four (4) regular Commissioners, and the Chief of the PNP as ex-officio member.
Three (3) of the regular Commissioners shall come from the civilian sector who are neither
active nor former members of the police or military, one (1) of whom shall be designated as vice
chairperson by the President. The fourth regular Commissioner shall come from the law
enforcement sector either active or retired: Provided, That an active member of a law
enforcement agency shall be considered resigned from said agency once appointed to the
Commission: Provided further, That at least one (1) of the Commissioners shall be a woman.
The Secretary of the Department shall be the ex-officio Chairperson of the Commission, while
the Vice Chairperson shall act as the executive officer of the Commission.

Meanwhile, section 8 states that —

Upon the effectivity of this Act, the terms of office of the current Commissioners are deemed
expired which shall constitute a bar to their reappointment or an extension of their terms in the
Commission except for current Commissioners who have served less than two (2) years of their
terms of office who may be appointed by the President for a maximum term of two (2) years.

Petitioners argue that their removal from office by virtue of section 8 of RA 8551 violates their
security of tenure.1âwphi1.nêt

It is beyond dispute that petitioners herein are members of the civil service, which embraces all
branches, subdivisions, instrumentalities, and agencies of the Government, including
government-owned or controlled corporations with original charters.5 As such, they cannot be
removed or suspended from office, except for cause provided by law.6 The phrase "except for
cause provided by law" refers to ". . . reasons which the law and sound public policy recognize as
sufficient warrant for removal, that is, legal cause, and not merely causes which the appointing
power in the exercise of discretion may deem sufficient."7

Public respondents insist that the express declaration in section 8 of RA 8551 that the terms of
petitioners' offices are deemed expired discloses the legislative intent to impliedly abolish the
NAPOLCOM created under RA 6975 pursuant to a bona fide reorganization. In support of their
theory, public respondents cite the various changes introduced by RA 8551 in the functions,
composition and character of the NAPOLCOM as proof of Congress' intention to abolish the
body created under RA 6975 in order to replace it with a new NAPOLCOM which is more
civilian in nature, in compliance with the constitutional mandate. Petitioners' posit the theory that
the abolition of petitioners' offices was a result of a reorganization of the NAPOLCOM allegedly
effected by RA 8551.8

The creation and abolition of public offices is primarily a legislative function.9 It is

acknowledged that Congress may abolish any office it creates without impairing the officer's
right to continue in the position held10 and that such power may be exercised for various reasons,
such as the lack of funds11 or in the interest of economy.12 However, in order for the abolition to
be valid, it must be made in good faith, not for political or personal reasons, or in order to
circumvent the constitutional security of tenure of civil service employees.13

An abolition of office connotes an intention to do away with such office wholly and permanently,
as the word "abolished" denotes.14 Where one office is abolished and replaced with another office
vested with similar functions, the abolition is a legal nullity. Thus, in U.P. Board of Regents v.
Rasul15 we said:

It is true that a valid and bona fide abolition of an office denies to the incumbent the right to
security of tenure. [De la Lanna v. Alba, 112 SCRA 294 (1982)]. However, in this case, the
renaming and restructuring of the PGH and its component units cannot give rise to a valid and
bona fide abolition of the position of PGH Director. This is because where the abolished office
and the offices created in its place have similar functions, the abolition lacks good faith. [Jose L.
Guerrero v. Hon. Antonio Arizabal, G.R. No. 81928, June 4, 1990, 186 SCRA 108 (1990)]. We
hereby apply the principle enunciated in Cesar Z. Dario vs. Hon. Salvador M. Mison [176 SCRA
84 (1989)] that abolition which merely changes the nomenclature of positions is invalid and does
not result in the removal of the incumbent.

The above notwithstanding, and assuming that the abolition of the position of the PGH Director
and the creation of a UP-PGH Medical Center Director are valid, the removal of the incumbent is
still not justified for the reason that the duties and functions of the two positions are basically the
same. . . . (emphasis supplied)

This was also our ruling in Guerrero v. Arizabal,16 wherein we declared that the substantial
identity in the functions between the two offices was indicia of bad faith in the removal of
petitioner pursuant to a reorganization.

We come now to the case at bench. The question that must first be resolved is whether or not
petitioners were removed by virtue of a valid abolition of their office by Congress. More
specifically, whether the changes effected by RA 8551 in reference to the NAPOLCOM were so
substantial as to effectively create a completely new office in contemplation of the law. In answer
to this query, the case of Mayor v. Macaraig17 is squarely in point.
In that case, the petitioners assailed the constitutionality of Republic Act No. 671518 insofar as it
declared vacant the positions of the Commissioners, Executive Labor Arbiters and Labor
Arbiters of the National Labor Relations Commission and provided for the removal of the
incumbents upon the appointment and qualification of their successors.19 The Court held that the
removal of petitioners was unconstitutional since Republic Act No. 6715 did not expressly or
impliedly abolish the offices of petitioners, there being no irreconcilable inconsistency in the
nature, duties and functions of the petitioners' offices under the old law and the new law. Thus:

Abolition of an office is obviously not the same as the declaration' that that office is vacant.
While it is undoubtedly a prerogative of the legislature to abolish certain offices, it can not be
conceded the power to simply pronounce those offices vacant and thereby effectively remove the
occupants or holders thereof from the civil service. Such an act would constitute, on its face, an
infringement of the constitutional guarantee of security of tenure, and will have to be struck
down on that account. It can not be justified by the professed "need to professionalize the higher
levels of officialdom invested with adjudicatory powers and functions, and to upgrade their
qualifications, ranks, and salaries or emoluments.

This is precisely what RA 8851 seeks to do — declare the offices of petitioners vacant, by
declaring that "the terms of office of the current Commissioners are deemed expired," thereby
removing petitioners herein from the civil service. Congress may only be conceded this power if
it is done pursuant to a bona fide abolition of the NAPOLCOM.

RA 8551 did not expressly abolish petitioners' positions. In order to determine whether there has
been an implied abolition, it becomes necessary to examine the changes introduced by the new
law in the nature, composition and functions of the NAPOLCOM.

Under RA 6975, the NAPOLCOM was described as a collegial body within the Department of
the Interior and Local Government,20 (Department) whereas under RA 8551 it is made "an
agency attached to the Department for policy and program coordination."21 Contrary to what
public respondents would have us believe, this does not result in the creation of an entirely new
office. In Mayor, the NLRC, prior to the passage of the amendatory law, was also considered an
integral part of the Department of Labor and Employment. RA 6715, however, changed that by
declaring that it shall instead ". .be attached to the Department of Labor and Employment for
program coordination only. . . ." making it a more autonomous body. The Court held that this
change in the NLRC's nature was not sufficient to justify a conclusion that the new law abolished
the offices of the labor commissioners.

Another amendment pointed out by public respondents is the revision of the NAPOLCOM's
composition. RA 8551 expanded the membership of the NAPOLCOM from four to five
Commissioners by adding the Chief of the PNP as an ex-officio member. In addition, the new law
provided that three of the regular Commissioners shall come from the civilian sector who are
neither active nor former members of the police or military, and that the fourth regular
Commissioner shall come from the law enforcement sector either active or retired. Furthermore,
it is required that at least one of the Commissioners shall be a woman."22 Again, as we held in
Mayor, such revisions do not constitute such essential changes in the nature of the NAPOLCOM
as to result in an implied abolition of such office. It will be noted that the organizational structure
of the NAPOLCOM, as provided in section 20 of RA 6975 as amended by section 10 of RA
8551,23 remains essentially the same and that, except for the addition of the PNP Chief as
ex-officio member, the composition of the NAPOLCOM is also substantially identical under the
two laws. Also, under both laws, the Secretary of the Department shall act as the ex-officio
Chairman of the Commission and the Vice-Chairman shall be one of the Commissioners
designated by the President.24

Finally, the powers and duties of the NAPOLCOM remain basically unchanged by the
amendments. Under RA 6975, the Commission has the following powers and functions:

(a) Exercise administrative control over the Philippine National Police;

(b) Advise the President on all matters involving police functions and administration;

(c) Foster and develop policies and promulgate rules and regulations, standards and procedures
to improve police services based on sound professional concepts and principles;

(d) Examine and audit, and thereafter establish the standards for such purposes on a continuing
basis, the performance, activities, and facilities of all police agencies throughout the country;

(e) Prepare a police manual prescribing rules and regulations for efficient organization,
administration, and operation, including recruitment, selection, promotion and retirement;

(f) Establish a system of uniform crime reporting;

(g) Conduct surveys and compile statistical data for the proper evaluation of the efficiency and
effectiveness of all police units in the country;

(h) Render to the President and to Congress an annual report on its activities and
accomplishments during the (30) days after the end of the calendar year, which shall include an
appraisal of the conditions obtaining in the organization and administration of police agencies in
the municipalities, cities and provinces throughout the country, and recommendation for
appropriate remedial legislation;

(i) Approve or modify, through the National Appellate Board, personnel disciplinary actions
involving demolition or dismissal from the service imposed upon members of the Philippine
National Police by the Chief of the Philippine National Police;
(j) Affirm reverse or modify, through the National Appellate Board, personnel disciplinary
actions involving demotion or dismissal from the service imposed upon members of the
Philippine National Police by the Chief of the Philippine National Police;

(k) Exercise appellate jurisdiction through the regional appellate boards over administrative
cases against policemen and over decisions on claims for police benefits;

(l) Recommend to the President, through the Secretary, within sixty (60) days before the
commencement of each calendar year, a crime prevention;

(m) Prescribe minimum standards for arms, equipment, and uniforms and, after consultation with
the Philippine Heraldry Commission, for insignia of ranks, awards and medals of honor;

(n) Issue subpoena and subpoena duces tecum in matters pertaining to the discharge of its own
powers and duties, and designate who among its personnel can issue such processes and
administer oaths in connection therewith; and

(o) Perform such other functions necessary to carry out the provisions of this Act and as the
President may direct.

Meanwhile, the NAPOLCOM's functions under section 5 of RA 8551 are:

a) Exercise administrative control and operational supervision over the Philippine National
Police which shall mean the power to:

1) Develop policies and promulgate a police manual prescribing rules and regulations for
efficient organization, administration, and operation, including criteria for manpower allocation,
distribution and deployment, recruitment, selection , promotion, and retirement of personnel and
the conduct of qualifying entrance and promotional examinations for uniformed members;

2) Examine and audit, and thereafter establish the standards for such purposes on a continuing
basis, the performance, activities and facilities of all police agencies throughout the country;

3) Establish a system of uniform crime reporting;

4) Conduct an annual self-report survey and compile statistical date for the accurate assessment
of the crime situation and the proper evaluation of the efficiency and effectiveness of all police
units in the country;

5) Approve or modify plans and programs on education and training, logistical requirements,
communications, records, information systems, crime laboratory, crime prevention and crime
reporting;
6) Affirm, reverse or modify, through the National Appellate Board, personnel disciplinary
actions involving demotion or dismissal from the service imposed upon members of the
Philippine National Police by the Chief of the Philippine National Police;

7) Exercise appellate jurisdiction through the regional appellate boards over administrative cases
against policemen and over decisions on claims for police benefits;

8) Prescribe minimum standards for arms, equipment, and uniforms and after consultation with
the Philippine Heraldry Commission, for insignia of ranks, awards, and medals of honor. Within
ninety (90) days from the effectivity of this Act, the standards of the uniformed personnel of the
PNP must be revised which should be clearly distinct from the military and reflective of the
civilian character of the police;

9) Issue subpoena and subpoena duces tecum in matters pertaining to the discharge of its own
powers and duties, and designate who among its personnel can issue such processes and
administer oaths in connection therewith;

10) Inspect and assess the compliance of the PNP on the established criteria for manpower
allocation, distribution, and deployment and their impact on the community and the crime
situation, and therewith formulate appropriate guidelines for maximization of resources and
effective utilization of the PNP personnel;

11) Monitor the performance of the local chief executives as deputies of the Commission; and

12) Monitor and investigate police anomalies and irregularities.

b) Advise the President on all matters involving police functions and administration;

c) Render to the President and to the Congress an annual report on its activities and
accomplishments during the thirty (30) days after the end of the calendar year, which shall
include an appraisal of the conditions obtaining in the organization and administration of police
agencies in the municipalities, cities and provinces throughout the country, and recommendations
for appropriate remedial legislation;

d) Recommend to the President, through the Secretary, within sixty (60) days before the
commencement of each calendar year, a crime prevention program; and

e) Perform such other functions necessary to carry out the provisions of this Act and as the
President may direct.

Clearly, the NAPOLCOM continues to exercise substantially the same administrative,

supervisory, rule-making, advisory and adjudicatory functions.
Public respondents argue that the fact that the NAPOLCOM is now vested with administrative
control and operational supervision over the PNP, whereas under RA 6975 it only exercised
administrative control should be construed as evidence of legislative intent to abolish such
office.25 This contention is bereft of merit. Control means "the power of an officer to alter or
modify or set aside what a subordinate officer had done in the performance of his duties and to
substitute the judgment of the former for the that of the latter."26 On the other hand, to supervise
is to oversee, to have oversight of, to superintend the execution of or the performance of a thing,
or the movements or work of a person, to inspect with authority; it is the power or authority of an
officer to see that subordinate officers perform their duties.27 Thus, the power of control
necessarily encompasses the power of supervision and adding the phrase "operational
supervision" under the powers of the NAPOLCOM would not bring about a substantial change
in its functions so as to arrive at the conclusion that a completely new office has been created.

Public respondents would have this Court believe that RA 8551 reorganized the NAPOLCOM
resulting in the abolition of petitioners' offices. We hold that there has been absolutely no attempt
by Congress to effect such a reorganization.

Reorganization takes place when there is an alteration of the existing structure of government
offices or units therein, including the lines of control, authority and responsibility between
them.28 It involves a reduction of personnel, consolidation of offices, or abolition thereof by
reason of economy or redundancy of functions.29 Naturally, it may result in the loss of one's
position through removal or abolition of an office. However, for a reorganization to be valid, it
must also pass the test of good faith, laid down in Dario v. Mison:30

. . . As a general rule, a reorganization is carried out in "good faith" if it is for the purpose of
economy or to make bureaucracy more efficient. In that event, no dismissal (in case of a
dismissal) or separation actually occurs because the position itself ceases to exist. And in that
case, security of tenure would not be a Chinese wall. Be that as it may, if the "abolition," which
is nothing else but a separation or removal, is done for political reasons or purposely to defeat
security of tenure, or otherwise not in good faith, no valid "abolition" takes place and whatever
"abolition" is done, is void ab initio. There is an invalid "abolition" as where there is merely a
change of nomenclature of positions, or where claims of economy are belied by the existence of
ample funds.

It is exceedingly apparent to this Court that RA 8551 effected a reorganization of the PNP, not of
the NAPOLCOM. They are two separate and distinct bodies, with one having supervision and
control over the other. In fact, it is the NAPOLCOM that is given the duty of submitting a
proposed reorganization plan of the PNP to Congress.31 As mentioned earlier, the basic structure
of the NAPOLCOM has been preserved by the amendatory law. There has been no revision in its
lines of control, authority and responsibility, neither has there been a reduction in its
membership, nor a consolidation or abolition of the offices constituting the same. Adding the
Chief of the PNP as an ex-officio member of the Commission does not result in a reorganization.
No bona fide reorganization of the NAPOLCOM having been mandated by Congress, RA 8551,
insofar as it declares the terms of office of the incumbent Commissioners, petitioners herein, as
expired and resulting in their removal from office, removes civil service employees from office
without legal cause and must therefore be struck down for being constitutionally infirm.

Petitioners are thus entitled to be reinstated to office. It is of no moment that there are now new
appointees to the NAPOLCOM. It is a well-entrenched principle that when a regular government
employee is illegally dismissed, his position never became vacant under the law and he is
considered as not having left his office. The new appointments made in order to replace
petitioners are not valid.32

At this juncture, we note that it is alleged by public respondents that on June 30, 1998,
Canonizado accepted an appointment by President Estrada as the Inspector General of Internal
Affairs Services (IAS) of the PNP, pursuant to sections 40 and 41 of RA 8551 and that he took
his oath of office before the President on July 7, 1998. However, this is a mere allegation on the
part of public respondents of which this Court cannot take judicial notice. Furthermore, this issue
has not been fully ventilated in the pleadings of the parties. Therefore, such allegation cannot be
taken into consideration by this Court in passing upon the issues in the present case.

Petitioners also assail the constitutionality of section 4 of RA 8551 insofar as it limits the law
enforcement sector to only one position on the Commission and categorizes the police as being
part of the law enforcement sector despite section 6 of Article XVI of the Constitution which
provides that the police force shall be civilian in character. Moreover, it is asserted by petitioners
that the requirement in section 4 that one of the Commissioners shall be a woman has no rational
basis and is therefore discriminatory. They claim that it amounts to class legislation and amounts
to an undue restriction upon the appointing power of the President as provided under section 16
of Article VII of the Constitution.33

In view of our ruling upon the unconstitutionality of petitioners' removal from office by virtue of
section 8 of RA 8551, we find that there is no longer any need to pass upon these remaining
constitutional questions. It is beyond doubt that the legislature has the power to provide for the
composition of the NAPOLCOM since it created such body. Besides, these questions go into the
very wisdom of the law, and unquestionably lie beyond the normal prerogatives of the Court to
pass upon.34

WHEREFORE, we grant the petition, but only to the extent of declaring section 8 of RA 8551
unconstitutional for being in violation of the petitioners' right to security of tenure. The removal
from office of petitioners as a result of the application of such unconstitutional provision of law
and the appointment of new Commissioners in their stead is therefore null and void. Petitioners
herein are entitled to REINSTATEMENT and to the payment of full backwages to be reckoned
from the date they were removed from office.35
SO ORDERED.

Davide, Jr., C.J., Bellosillo, Melo, Puno, Vitug, Kapunan, Mendoza, Panganiban, Quisumbing,
Purisima, Pardo, Buena, Ynares-Santiago and De Leon, Jr., JJ., concur.

Footnotes
1
Entitled "An Act Providing For the Reform And Reorganization Of The Philippine National
Police And For Other Purposes, Amending Certain Provisions Of Republic Act Numbered
Sixty-Nine Hundred And Seventy-Five Entitled, "An Act Establishing The Philippine National
Police Under A Re-Organized Department Of The Interior And Local Government, And For
Other Purposes." Took effect on March 6, 1998.
2
Rollo, 81.
3
Ibid.
4
Ibid., 83.
5
Constitution, art. 9 (B), sec. 2 (1).
6
Id., art. 9 (B), sec. 2 (3).
7
De los Santos vs. Mallare, 87 Phil 289 (1950).
8
Rollo, 84-94.
9
Eugenio v. Civil Service Commission, 243 SCRA 196 (1995).
10
Manalang v. Quitoriano, 94 Phil 903 (1954).
11
Ginzon v. Municipality of Murcia, 158 SCRA 1 (1988); Gregorio v. Court of Appeals, 129
SCRA 184 (1984).
12
Abrot v. Court of Appeals, 116 SCRA 468 (1982).
13
Baldoz v. Office of the President, 78 SCRA 354 (1977).
14
Busacay v. Buenaventura and Murao, 93 Phil 786 (1953).
15
200 SCRA 685 (1991). See Gacho v. Osmena, Jr., 103 Phil 837 (1958); Brillo v. Enage, 94 Phil
732 (1954).
16
186 SCRA 108 (1990).
17
194 SCRA 672 (1991).
18
Entitled "An Act To Extend Protection To Labor, Strengthen The Constitutional Rights Of
Workers To Self-Organization, Collective Bargaining And Peaceful Concerted Activities, Foster
Industrial Peace And Harmony, Promote The Preferential Use Of Voluntary Modes Of Settling
Labor Disputes And Reorgnize The National Labor Relations Commission, Amending
Presidential Decree No. 441, As Amended, Otherwise Known As The Labor Code Of The
Philippines, Appropriating Funds Therefor And For Other Purposes." Took effect on March 21,
1989.
19
Id. SEC. 35 provides —

Equity of the Incumbent. — Incumbent career officials and rank-and-file employees of the
National Labor Relations Commission not otherwise affected by the Act shall continue to hold
office without need of reappointment. However, consistent with the need to professionalize the
higher levels of officialdom invested with adjudicatory powers and functions, and to upgrade
their qualifications, ranks, and salaries or emoluments, all positions of the Commissioners,
Executive Labor Arbiters and Labor Arbiters of the present National Labor Relations
Commission are hereby declared vacant. However, subject officials shall continue to temporarily
discharge their duties and functions until their successors shall have been duly appointed and
qualified. (emphasis supplied).
20
RA 6975, sec. 13.
21
RA 8551, sec. 4.
22
Id.
23
Id., SEC. 10 Section 20 of Republic Act No. 6975 is hereby amended to read as follows:

Sec. 20. Organizational Structure. — The Commission shall consist of the following units:

(a) Commission Proper. — This is composed of the offices of the Chairman and four (4)
Commissioners.

(b) Staff Services. — The staff services of the Commission shall be as follows:

(1) The Planning and Research Service, which shall provide technical services to the
Commission in areas of overall policy formulation, strategic and operational planning,
management systems or procedures, evaluation and monitoring of the Commission's programs,
projects and internal operations; and shall conduct thorough research and analysis on social and
economic conditions affecting peace and order in the country;
(2) The Legal Affairs Service, which shall provide the Commission with efficient service as legal
counsel of the Commission; draft or study contracts affecting the Commission and submit
appropriate recommendations pertaining thereto; and render legal opinions arising from the
administration and operation of the Philippine National Police and the Commission;

(3) The Crime Prevention and Coordination Service, which shall undertake criminological
researches and studies; formulate a national crime prevention plan; develop a crime prevention
and information program and provide editorial direction for all criminology research and crime
prevention publications;

(4) The Personnel and Administrative Service, which shall perform personnel functions for the
Commission, administer the entrance and promotional examinations for the policemen, provide
the necessary services relating to records, correspondence, supplies, property and equipment,
security and general services, and the maintenance and utilization of facilities, and provide
services relating to manpower, career planning and development, personnel transaction and
employee welfare;

(5) The Inspection, Monitoring and Investigation Service, which shall conduct continuous
inspection and management audit of personnel, facilities and operations at all levels of command
of the PNP, monitor the implementation of the Commission's programs and projects relative to
the law enforcement; and monitor and investigate police anomalies and irregularities;

(6) The Installations and Logistics Service, which shall review the Commission's plans and
programs and formulate policies and procedures regarding acquisition, inventory, control,
distribution, maintenance and disposal of supplies and shall oversee the implementation of
programs on transportation facilities and installations and the procurement and maintenance of
supplies and equipment; and

(7) The Financial Service, which shall provide the Commission with staff advice and assistance
on budgetary and financial matters, including the overseeing of the processing and disbursement
of funds pertaining to the scholarship program and surviving children of deceased and/or
permanently incapacitated PNP personnel.

(c) Disciplinary Appellate Boards. — The Commission shall establish a formal administrative
disciplinary appellate machinery consisting of the National Appellate Board and the regional
appellate boards.1âwphi1.nêt

The National Appellate Board shall decide cases on appeal from decisions rendered by the chief,
while the regional appellate boards shall decide cases on appeal from decisions rendered by
officers other than the PNP chief, the mayor, and the People's Law Enforcement Board (PLEB)
created hereunder.

(amendments are underscored)

24
RA 6975, sec. 13; RA 8551, sec. 4.
25
Rollo, 88.
26
Blaquera v. Alcala, 295 SCRA 366 (1998).
27
Borres v. Canonoy, G.R. No. L-31641, October 23, 1981.
28
De Leon and De Leon, Jr., The Law On Public Officers And Election Law (1994 ed.), 365.
29
Dario v. Mison, 176 SCRA 84 (1989).
30
176 SCRA 84 (1989). See Dytiapco v. Civil Service Commission, 211 SCRA 88 (1992);
Domingo v. Development Bank of the Philippines, 207 SCRA 766 (1992); Pari-an v. Civil
Service Commission, 202 SCRA 772 (1991).
31
RA 8551, SEC. 13. Authority of the Commission to Reorganize the PNP. —

Notwithstanding the provisions of Republic Act No. 6975 on the organizational structure and
rank classification of the PNP, the Commission shall conduct a management audit, and prepare
and submit to Congress a proposed reorganization plan of the PNP not later than December 31,
1998, subject to the limitations provided under this Act and based on the following criteria: a)
increased police visibility through dispersal of personnel from the headquarters to the field
offices and by the appointment and assignment of non-uniformed personnel to positions which
are purely administrative, technical, clerical or menial in nature and other positions which are not
actually and directly related to police operation; and b) efficient and optimized delivery of police
services to the communities.

The PNP reorganization program shall be approved by Congress through a joint resolution.
32
Floreza v. Ongpin, 182 SCRA 692 (1990); Tanala v. Legaspi, 13 SCRA 566 (1965).
33
Rollo, 8-12.
34
Osmena v. Commission on Elections, 288 SCRA 447 (1998).
35
Mendoza v. Quisumbing, 186 SCRA 108 (1990).