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EN BANC G.R. No. 78239 February 9, 1989 SALVACION A. MONSANTO, petitioner, vs. FULGENCIO S. FACTORAN, JR., respondent.
FERNAN, C.J.: The principal question raised in this petition for review is whether or not a public officer, who has been granted an absolute pardon by the Chief Executive, is entitled to reinstatement to her former position without need of a new appointment. In a decision rendered on March 25, 1983, the Sandiganbayan convicted petitioner Salvacion A. Monsanto (then assistant treasurer of Calbayog City) and three other accused, of the complex crime of estafa thru falsification of public documents and sentenced them to imprisonment of four (4) years, two (2) months and one (1) day ofprision correccional as minimum, to ten (10) years and one (1) day of prision mayor as maximum, and to pay a fine of P3,500. They were further ordered to jointly and severally indemnify the government in the sum of P4,892.50 representing the balance of the amount defrauded and to pay the costs proportionately. Petitioner Monsanto appealed her conviction to this Court which subsequently affirmed the same. She then filed a motion for reconsideration but while said motion was pending, she was extended on December 17, 1984 by then President Marcos absolute pardon which she accepted on December 21, 1984. By reason of said pardon, petitioner wrote the Calbayog City treasurer requesting that she be restored to her former post as assistant city treasurer since the same was still vacant. Petitioner's letter-request was referred to the Ministry of Finance for resolution in view of the provision of the Local Government Code transferring the power of appointment of treasurers from the city governments to the said Ministry. In its 4th Indorsement dated March 1, 1985, the Finance Ministry ruled that petitioner may be reinstated to her position without the necessity of a new appointment not earlier than the date she was extended the absolute pardon. It also directed the city treasurer to see to it that the amount of P4,892.50 which the Sandiganbayan had required to be indemnified in favor of the government as well as the costs of the litigation, be satisfied. 1 Seeking reconsideration of the foregoing ruling, petitioner wrote the Ministry on April 17, 1985 stressing that the full pardon bestowed on her has wiped out the crime which implies that her service in the government has never been interrupted and therefore the date of her reinstatement should correspond to the date of her preventive suspension which is August 1, 1982; that she is entitled to backpay for the entire period of her suspension; and that she should not be required to pay the proportionate share of the amount of P4,892.50. 2 The Ministry of Finance, however, referred petitioner's letter to the Office of the President for further review and action. On April 15, 1986, said Office, through Deputy Executive Secretary Fulgenio S. Factoran, Jr. held: We disagree with both the Ministry of Finance and the petitioner because, as borne out by the records, petitioner was convicted of the crime for which she was accused. In line with the government's crusade to restore absolute honesty in public service, this Office adopts, as a juridical guide (Miranda v. Imperial, 77 Phil. 1966), the Resolution of the Sandiganbayan, 2nd Division, inPeople v. Lising, Crim. Case No. 6675, October 4, 1985, that acquittal, not absolute pardon, of a former public officer is the only ground for reinstatement to his former position and entitlement to payment of his salaries, benefits and emoluments due to him during the period of his suspensionpendente lite. In fact, in such a situation, the former public official must secure a reappointment before he can reassume his former position. ... Anent the civil liability of Monsanto, the Revised Penal Code expressly provides that "a pardon shall in no case exempt the culprit from payment of the civil indemnity imposed upon him by the sentence." (Sec. 36, par. 2).
Her subsequent motion for reconsideration having been denied, petitioner filed the present petition in her behalf We gave due course on October 13, 1987.
8 The propositions earlier advanced by petitioner reveal her inadequate understanding of the nature of pardon and its legal consequences. and delivery is not complete without acceptance. It is worth mentioning that under the 1987 Constitution. The Pelobello v. the accessory penalty of forfeiture of office did not attach and the status of her employment remained "suspended. two months and one day of prision correccional as minimum. enforceable during the term of the principal penalty. from attaching. 14 . The pertinent provision reads: The President may. it makes him. 47941. that an absolute pardon not only blots out the crime committed but removes all disabilities resulting from the conviction. If granted before conviction. except in cases of impeachment. to the validity of which delivery is essential. and with the concurrence of the Batasang Pambansa. 4 It is well to remember that petitioner had been convicted of the complex crime of estafa thru falsification of public documents and sentenced to imprisonment of four years. the pardoning power was governed by the 1973 Constitution as amended in the April 7. it releases the punishment and blots out of existence the guilt.. we adopt the broad view expressed in Cristobal v." More importantly. The benign mercy of pardon is of British origin. it is not material when the pardon was bestowed. grant amnesty. Palatino and Cristobal v. December 7. the former limitation of final conviction was restored. to ten years and one day of prision mayor as maximum. A pardon is a deed. it removes the penalties and disabilities and restores him to all his civil rights. (W)e are of the opinion that the better view in the light of the constitutional grant in this jurisdiction is not to unnecessarily restrict or impair the power of the Chief Executive who.Petitioner's basic theory is that the general rules on pardon cannot apply to her case by reason of the fact that she was extended executive clemency while her conviction was still pending appeal in this Court. Pardon is defined as "an act of grace. 10 We find a reiteration of the stand consistently adopted by the courts on the various consequences of pardon: ". . 13 whose sweeping generalizations to this day continue to hold sway in our jurisprudence despite the fact that much of its relevance has been downplayed by later American decisions. 1940. delivered to the individual for whose benefit it is intended. petitioner is deemed to have abandoned her appeal and her unreversed conviction by the Sandiganbayan assumed the character of finality. though official act of the executive magistrate. the pardoning power cannot be restricted or controlled by legislative action. as one of its accessory penalties. when pardon was issued before the final verdict of guilt. implying that clemency could be given even before conviction. In other words. In effect.. it prevents any of the penalties and disabilities.. her employment therefore as assistant city treasurer could not be said to have been terminated or forfeited. commutations and pardons. a new man.. Palatino. on whom it is bestowed. 9 The 1981 amendments had deleted the earlier rule that clemency could be extended only upon final conviction. There having been no final judgment of conviction. as to the principal penalty. Consider the following broad statements: A pardon reaches both the punishment prescribed for the offense and the guilt of the offender. it is our view that in the present case. 11 and several others 12 show the unmistakable application of the doctrinal case of Ex Parte Garland. Labrador.. for the result would still be the same. Thus. petitioner's unconditional pardon was granted even as her appeal was pending in the High Court. . suspension from public office. as it were.. and gives him a new credit and capacity. without that final judgment of conviction. should be at liberty to atone the rigidity of the law to the extent of relieving completely the party . after an inquiry into the environmental facts... In Pelobello v. if granted after conviction. grant reprieves. 5 Temporary absolute disqualification bars the convict from public office or employment. conceived to temper the gravity of the King's wrath. that subject to the limitations imposed by the Constitution. Labrador cases. we proceed to discuss the effects of a full and absolute pardon in relation to the decisive question of whether or not the plenary pardon had the effect of removing the disqualifications prescribed by the Revised Penal Code.R. Having accepted the pardon. It is the private. and not communicated officially to the Court. it was an acquittal because there was no offense to speak of. 1981 plebiscite. This is not totally unexpected considering that the authorities on the subject have not been wholly consistent particularly in describing the effects of pardon. G. 7 The penalty of prision correccional carries. such disqualification to last during the term of the sentence. But Philippine jurisprudence on the subject has been largely influenced by American case law. and when the pardon is full. concerned from the accessory and resultant disabilities of criminal conviction. proceeding from the power entrusted with the execution of the laws. 6 Even if the offender be pardoned. But be that as it may. remit fines and forfeitures. Having disposed of that preliminary point. the President has declared her not guilty of the crime charged and has accordingly dismissed the same. No. the accessory penalties remain unless the same have been expressly remitted by the pardon. from the punishment the law inflicts for a crime he has committed. whether before or after conviction. which exempts the individual. consequent upon conviction." 8-a At the time the antecedents of the present case took place. so that in the eye of the law the offender is as innocent as if he had never committed the offense. The penalty of prision mayor carries the accessory penalties of temporary absolute disqualification and perpetual special disqualification from the right of suffrage.
Pardon implies guilt. that which has been done or suffered while they were in force is presumed to have been rightfully done and justly suffered. cannot be entitled to receive backpay for lost earnings and benefits. though pardoned. Stated differently. The Court cannot oblige her. which has been definitely fixed. the pardon granted to petitioner has resulted in removing her disqualification from holding public employment but it cannot go beyond that. In the case of State v. Petitioner maintains that when she was issued absolute pardon." 20 This would explain why petitioner. To regain her former post as assistant city treasurer. Civil liability arising from crime is governed by the Revised Penal Code. but they cannot erase the stain of bad character. A person adjudged guilty of an offense is a convicted criminal. recognized or approved. Finally. To our mind. 17 But it relieves him from nothing more. For petitioner Monsanto. we are in full agreement with the commonly-held opinion that pardon does not ipso facto restore a convicted felon to public office necessarily relinquished or forfeited by reason of the conviction 25 although such pardon undoubtedly restores his eligibility for appointment to that office. the Court wishes to stress one vital point: While we are prepared to concede that pardon may remit all the penal consequences of a criminal indictment if only to give meaning to the fiat that a pardon. Pardons may relieve from the disability of fines and forfeitures attendant upon a conviction. safety and benefit of the common good. The very essence of a pardon is forgiveness or remission of guilt. we do not subscribe to the fictitious belief that pardon blots out the guilt of an individual and that once he is absolved. integrity and fair dealing. And in considering her qualifications and suitability for the public post. Thus. It does not erase the fact of the commission of the crime and the conviction thereof. despite the public manifestation of mercy and forgiveness implicit in pardon. that the offender is a "new man". " Since the offense has been established by judicial proceedings. 22 In this ponencia.Such generalities have not been universally accepted. it cannot bring back lost reputation for honesty. and no satisfaction for it can be required. the facts constituting her offense must be and should be evaluated and taken into account to determine ultimately whether she can once again be entrusted with public funds. should not be circumscribed by legislative action. including the disqualifications or disabilities based on the finding of guilt. law-abiding citizen. albeit full and plenary. we cannot perceive how pardon can produce such "moral changes" as to equate a pardoned convict in character and conduct with one who has constantly maintained the mark of a good. While a pardon has generally been regarded as blotting out the existence of guilt so that in the eye of the law the offender is as innocent as though he never committed the offense. being a presidential prerogative. this is the bottom line: the absolute disqualification or ineligibility from public office forms part of the punishment prescribed by the Revised Penal Code for estafa thru falsification of public documents. Henceforth. though left unpunished. They cannot be compromised to favor private interests." is to ignore the difference between the crime and the criminal. or for any reason the sentence is not served by pardon. "To say. 15 The modern trend of authorities now rejects the unduly broad language of the Garland case (reputed to be perhaps the most extreme statement which has been made on the effects of a pardon). It subsists notwithstanding service of sentence. 26 The rationale is plainly evident Public offices are intended primarily for the collective protection. It affords no relief for what has been suffered by the offender. a poor moral risk. it does not operate for all purposes. It is clear from the authorities referred to that when her guilt and punishment were expunged by her pardon. Petitioner's civil liability may only be extinguished by the same causes . though pardoned. It does not wash out the moral stain. It involves forgiveness and not forgetfulness. A pardon. the Chief Executive declared her not guilty of the crime for which she was convicted. But unless expressly grounded on the person's innocence (which is rare). though it places no restraints upon him following his conviction. this particular disability was likewise removed. "ordinary. cannot preclude the appointing power from refusing appointment to anyone deemed to be of bad character. 16 The better considered cases regard full pardon (at least one not based on the offender's innocence) as relieving the party from all the punitive consequences of his criminal act. To insist on automatic reinstatement because of a mistaken notion that the pardon virtually acquitted one from the offense of estafa would be grossly untenable. 19 It makes no amends for the past. amnesty or commutation of sentence. petitioner may apply for reappointment to the office which was forfeited by reason of her conviction." 23 Pardon granted after conviction frees the individual from all the penalties and legal disabilities and restores him to all his civil rights. and "as innocent as if he had never committed the offense. and the law may regard him as more dangerous to society than one never found guilty of crime. The very act of forgiveness implies the commission of wrong. and that wrong has been established by the most complete method known to modern civilization. It does not impose upon the government any obligation to make reparation for what has been suffered. It is not retrospective. petitioner has sought exemption from the payment of the civil indemnity imposed upon her by the sentence. Pardon cannot mask the acts constituting the crime. For whatever may have been the judicial dicta in the past. he may be deserving of punishment. however. prudent men will take into account in their subsequent dealings with the actor. 21 we find this strong observation: "To assume that all or even a major number of pardons are issued because of innocence of the recipients is not only to indict our judicial system. These are "historical" facts which. she must re-apply and undergo the usual procedure required for a new appointment. notwithstanding the expansive and effusive language of the Garland case. he should be treated as if he were innocent. or who is unsuitable by reason of the pardoned conviction. but requires us to assume that which we all know to be untrue. Hazzard. this is the more realistic approach." 18 A pardon looks to the future. 24 This must be constantly kept in mind lest we lose track of the true character and purpose of the privilege.
There can be no dispute that the pardon extinguished petitioner's criminal liability. Narvasa. subject matter of the pardon. no matter how intensely arguable. 36." The restoration of the right to hold public office to one who has lost such right by reason of conviction in a criminal case. 1986. 36. on the main contention that. Petitioner then filed a motion for reconsideration but while said motion was pending.50. cannot be left to inference. At the same time. to the extent that the pardon granted to the petitioner did not expressly restore the right to hold public office as an effect of such pardon. nor did such pardon extinguish her civil liability for the criminal conviction. positive and specific language. and to pay a fine of P 3. as maximum. she was charged before the Sandiganbayan with the complex crime of Estafa through falsification of public documents.recognized in the Civil Code. Petitioner Salvacion A Monsanto was Assistant Treasurer of Calbayog City. Jr. this petition for review on certiorari was filed before the Court seeking the setting aside and reversal of the decision of the respondent Assistant Executive Secretary. Bidin. Paras. asked that she be allowed to re-assume her former office. Medialdea and Regalado. Calbayog City) or to suffrage. It states: ART. it is. SO ORDERED.: I concur in the result but on grounds different from those relied upon by the majority opinion. Griño-Aquino.892. two (2) months and one (1) day of prision correccional. concur. is AFFIRMED. yet. By reason of said absolute pardon. and to the other reliefs prayed for.. remission of the debt. to ten (10) years and one (1) day of prision correccional. Gancayco. the Ministry of Finance and the Office of the President.500. compensation and novation. JJ. she is entitled to reinstatement to her former position without need of a new appointment. . A pardon shall in no case exempt the culprit from the payment of the civil indemnity imposed upon him by the sentence.00. but subsequently pardoned. explicit. Petitioner appealed the judgment of conviction to this Court which affirmed the same. Pardon. Art. (Emphasis supplied) Applying Art. it is my considered opinion that. and that she be not required to pay her proportionate share of the amount of P 4. 36 of the Revised Penal Code to the case at bar. namely: payment. . petitioner in representations before the City Treasurer of Calbayog. 27 WHEREFORE. but must be stated in express. President Ferdinand E. 36 of the Revised Penal Code categorically covers the effects of a pardon on the pardoned's right to hold office. concurs in the result. as minimum. Factoran. J. suffrage and on his civil liability. An examination of the presidential pardon in question shows that.50 representing the balance of the amount defrauded and to pay the costs proportionately. Together with three (3) other accused. or the right of suffrage. In view of the express exclusion by Art. After trial. Respondent Assistant Executive Secretary denied petitioner's request for automatic reinstatement as well as her other claims. to my mind. Marcos extended to her on 17 December 1984 an absolute pardon which she accepted on 21 December 1984. notwithstanding a pardon unless the right is expressly restored by the pardon. Melencio-Herrera. unless such rights be expressly restored by the terms of the pardon. the accused were convicted and sentenced to imprisonment of four (4) years. It is a recognized principle in public law — hopefully to be honored more in its compliance rather than in its breach — that a "public office is a public trust. RPC of the right to hold public office. its effects. They were also ordered to jointly and severally indemnify the government in the sum of P 4. as of 1 August 1982 (the date of her preventive suspension). while petitioner was granted "an absolute and unconditional pardon and restored to full civil and political rights". because of which denial. Separate Opinions PADILLA. No costs. that she be paid her back salaries for the entire period of her suspension. J. Cortes. as a public officer who has been granted an absolute pardon by the President. To require this would not be asking too much. clear that the pardon extended by the President to the petitioner did not per se entitle her to again hold public office (including therefore the office of Assistant Treasurer. loss of the thing due. that right must be kept away from the petitioner..892. the assailed resolution of former Deputy Executive Secretary Fulgencio S. nothing therein expressly provides that the right to hold public office was thereby restored to the petitioner. merger of the rights of creditor and debtor..A pardon shall not work the restoration of the right to hold public office. dated April 15.
be made in respect of the restoration of the right to vote. Fernandez. . particularly in the light of our times and experience. Pardon.. . If such be the message of said cases. Article 41. et al. quoted above. . p. Palatino. I also join in the separate concurring opinion of Mr. or the right of suffrage. Article 36 of the Revised Penal Code states: Article 36. unless such rights be expressly restored by the terms of the pardon. I join in the basic point of Mr. Sarmiento.The penalty of prision mayor shall carry with it that of temporary absolute disqualification and that of perpetual special disqualification from the right of suffrage which the offender shall suffer although pardoned as to the principal penalty.. Melencio-Herrera. unless such accessory penalties have been expressly remitted in the pardon. I do not believe that Articles 36.I am aware that there are broad statement in Cristobal vs. 341 and Pelobello vs. . Article 42. basically for my own clarification. unless the same shall have been expressly remitted in the pardon. Articles 36 and 40-43 of the Revised Penal Code. when it is not executed by reason of commutation or pardon shall carry with it that of perpetual absolute disqualification and that of civil interdiction during thirty years following the date of sentence. Prision correccional . The 17 December 1984 pardon extended to petitioner in the instant case was written on a standard printed form which states inprinted words that it was "an absolute and unconditional pardon [which] restored [petitioner] to full civil and political rights. so that an absolute pardon to work a restoration of the right to hold public office must expressly so state.Its accessory penalties. A pardon shall in no case exempt the culprit from the payment of the civil indemnity imposed upon him by the sentence. Death-Its accessory penalties." . unless the same shall have been expressly remitted in the pardon.The death penalty. to include the right to hold public office (Versoza vs. concur. then I submit that a modification is in order. included the accessory penalties of temporary absolute disqualification from public office or employment and perpetual special disqualification from the right of suffrage. 55 Phil. ACCORDINGLY. from the right to follow a profession or calling. Justice Padilla. 71 Phil." 1 While the right of suffrage and the right to hold public office or employment are commonly regarded as "political rights. restores full civil rights which have been construed. Article 43. and that of perpetual special disqualification from the right of suffrage.A pardon shall not work the registration of the right to hold public office. Justice Padilla that because of the nature of a public office as a public trust. of course. in turn. Articles 36 and 40-43 appropriately require a very high degree of explicitness if a pardon is to work the restoration of such right to petitioner.The penalty of prision correccional shall carry with it that of suspension from public office. its effects. unless the same shall have been expressly remitted in the pardon.Its accessory penalties. Labrador. (Emphasis supplied) It is worthy of note that the rule embodied in Article 36 is reiterated four (4) times by the Revised Penal Code in its following provisions: Article 40. 5). . collided with any provision or principle embodied in either of our prior constitutions. (Emphasis supplied) The Chief Justice points out that the penalty imposed upon petitioner for the complex crime of estafa through falsification of public documents. to say (in page 13) that: "the pardon granted to petitioner has resulted in removing her disqualification from holding public employment but it cannot go beyond that. At the same time. 323). Exactly the same point may." 2 it must be noted that there are other "political rights" 3 and that the pardon given to petitioner did not expressly and in printer's ink restore to petitioner the particular right to hold public office and the specific right to vote at elections and plebiscites. concurring: I concur in the result reached in the important and eloquent opinion of the Chief Justice. J. The offender shall suffer the disqualification provided in this article although pardoned as to the principal penalty. 72 Phil.Their accessory penalties. without qualification. whether one refers to the 1935 Constitution or to the 1973 and 1987 Constitutions. if the duration of said imprisonment shall exceed eighteen months. and that of perpetual absolute disqualificationwhich the offender shall suffer even though pardoned as to the principal penalty. I believe that they have been left intact by the constitutional provisions on pardon. FELICIANO. The Chief Justice appears to agree with this position when he referred to Article 36 of the Revised Penal Code (Opinion. He goes on. however. in order to give substance and meaning to the sound provisions of Article 36 of the Revised Penal Code. Prision mayor . Reclusion perpetua and reclusion temporal. I vote to DENY the petition. have been in our statute books since 1930. I would add a few brief statements. JJ. . 441 which may be understood to mean that an absolute pardon.The penalties ofreclusion perpetua and reclusion temporal shall carry with them that of civil interdiction for life or during the period of the sentence as the case may be.
It is submitted. as minimum. asked that she be allowed to re-assume her former office. In my view. Art. Separate Opinions PADILLA. of the Revised Penal Code have not been shown to be an unconstitutional restriction on the pardoning power of the President. nothing therein expressly provides that the right to hold public office was thereby restored to the petitioner. Respondent Assistant Executive Secretary denied petitioner's request for automatic reinstatement as well as her other claims.500. subject matter of the pardon. . Sarmiento. Jr. because of which denial. the mere grant of a pardon to a public officer or employee who has been unfaithful to the public trust and sentenced to disqualification from voting and from holding such office. its effects. and to pay a fine of P 3. she was charged before the Sandiganbayan with the complex crime of Estafa through falsification of public documents. while petitioner was granted "an absolute and unconditional pardon and restored to full civil and political rights". clear that the pardon extended by the President to the petitioner did not per se entitle her to again hold public office (including therefore the office of Assistant Treasurer. as maximum. that right must be kept away from the petitioner. does not appear to be an unreasonably onerous one. the accused were convicted and sentenced to imprisonment of four (4) years. as a public officer who has been granted an absolute pardon by the President. After trial. At the same time. Marcos extended to her on 17 December 1984 an absolute pardon which she accepted on 21 December 1984. to ten (10) years and one (1) day of prision correccional. Petitioner appealed the judgment of conviction to this Court which affirmed the same. to the extent that the pardon granted to the petitioner did not expressly restore the right to hold public office as an effect of such pardon. Factoran.50. 36. 36 of the Revised Penal Code categorically covers the effects of a pardon on the pardoned's right to hold office. if limitation it be. on the main contention that. President Ferdinand E. I vote to DENY the Petition for Review and to AFFIRM the assailed Resolution of the then Executive Secretary Fulgencio S. In other words. to my mind. RPC of the right to hold public office. Petitioner then filed a motion for reconsideration but while said motion was pending. et al. unless such rights be expressly restored by the terms of the pardon. notwithstanding a pardon unless the right is expressly restored by the pardon. There can be no dispute that the pardon extinguished petitioner's criminal liability. Such requirement of explicitness seems entirely in line with the fundamental point made by the Chief Justice that a pardon does not blot out the factual guilt of the recipient of the pardon. with respect. 36.50 representing the balance of the amount defrauded and to pay the costs proportionately. does not create the presumption that the recipient of the pardon has thereby suddenly become morally eligible once more to exercise the right to vote and to hold public office. 36 of the Revised Penal Code to the case at bar.A pardon shall not work the restoration of the right to hold public office. the Ministry of Finance and the Office of the President. merely require the President to become completely explicit if the pardon he extends is intended to wipe out not merely the principal but also the accessory penalty of disqualification from holding public office and from voting and to restore the recipient of the pardon to the exercise of such fundamental political rights. et al. and to the other reliefs prayed for. Calbayog City) or to suffrage. concur. as of 1 August 1982 (the date of her preventive suspension). By reason of said absolute pardon. Together with three (3) other accused. It states: ART. yet.892. They were also ordered to jointly and severally indemnify the government in the sum of P 4. A pardon shall in no case exempt the culprit from the payment of the civil indemnity imposed upon him by the sentence. An examination of the presidential pardon in question shows that. the pardon extended to petitioner was ineffective to restore to her the right to hold public office and on this ground. she is entitled to reinstatement to her former position without need of a new appointment. this petition for review on certiorari was filed before the Court seeking the setting aside and reversal of the decision of the respondent Assistant Executive Secretary. Petitioner Salvacion A Monsanto was Assistant Treasurer of Calbayog City. (Emphasis supplied) Applying Art. Gutierrez. that Articles 36. Jr. The limitation on the President's pardoning power. Cruz. Melencio-Herrera. petitioner in representations before the City Treasurer of Calbayog.. Articles 36. or the right of suffrage.892. nor did such pardon extinguish her civil liability for the criminal conviction. and that she be not required to pay her proportionate share of the amount of P 4. J. two (2) months and one (1) day of prision correccional. In view of the express exclusion by Art. it is. suffrage and on his civil liability.. that she be paid her back salaries for the entire period of her suspension. it is my considered opinion that. JJ.: I concur in the result but on grounds different from those relied upon by the majority opinion.00. Pardon. .
" 1 While the right of suffrage and the right to hold public office or employment are commonly regarded as "political rights. in order to give substance and meaning to the sound provisions of Article 36 of the Revised Penal Code. Article 43. 441 which may be understood to mean that an absolute pardon. Justice Padilla that because of the nature of a public office as a public trust. particularly in the light of our times and experience. 72 Phil. A pardon shall in no case exempt the culprit from the payment of the civil indemnity imposed upon him by the sentence.The penalty of prision mayor shall carry with it that of temporary absolute disqualification and that of perpetual special disqualification from the right of suffrage which the offender shall suffer although pardoned as to the principal penalty. . included the accessory penalties of temporary absolute disqualification from public office or employment and perpetual special disqualification from the right of suffrage. to include the right to hold public office (Versoza vs. Prision mayor . but subsequently pardoned. unless the same shall have been expressly remitted in the pardon. . cannot be left to inference." The restoration of the right to hold public office to one who has lost such right by reason of conviction in a criminal case. If such be the message of said cases. I vote to DENY the petition.The death penalty. 55 Phil. basically for my own clarification. Sarmiento. without qualification. Article 42. then I submit that a modification is in order. unless the same shall have been expressly remitted in the pardon. JJ. Prision correccional . but must be stated in express. . The 17 December 1984 pardon extended to petitioner in the instant case was written on a standard printed form which states inprinted words that it was "an absolute and unconditional pardon [which] restored [petitioner] to full civil and political rights. (Emphasis supplied) The Chief Justice points out that the penalty imposed upon petitioner for the complex crime of estafa through falsification of public documents. restores full civil rights which have been construed. I also join in the separate concurring opinion of Mr.Their accessory penalties. ACCORDINGLY. Articles 36 and 40-43 appropriately require a very high degree of explicitness if a pardon is to work the restoration of such right to petitioner. Reclusion perpetua and reclusion temporal. Labrador.A pardon shall not work the registration of the right to hold public office. no matter how intensely arguable. I join in the basic point of Mr.Its accessory penalties. of course. 341 and Pelobello vs. unless such accessory penalties have been expressly remitted in the pardon. Palatino.The penalties ofreclusion perpetua and reclusion temporal shall carry with them that of civil interdiction for life or during the period of the sentence as the case may be. so that an absolute pardon to work a restoration of the right to hold public office must expressly so state. FELICIANO. The offender shall suffer the disqualification provided in this article although pardoned as to the principal penalty. in turn. when it is not executed by reason of commutation or pardon shall carry with it that of perpetual absolute disqualification and that of civil interdiction during thirty years following the date of sentence. Melencio-Herrera. . and that of perpetual absolute disqualificationwhich the offender shall suffer even though pardoned as to the principal penalty." 2 it must be noted that there are other "political rights" 3 and that the pardon given to petitioner did not expressly and in printer's ink restore to petitioner the particular right to hold public office and the specific right to vote at elections and plebiscites. At the same time.It is a recognized principle in public law-hopefully to be honored more in its compliance rather than in its breach that a "public office is a public trust. 323). concurring: I concur in the result reached in the important and eloquent opinion of the Chief Justice. Death-Its accessory penalties. To require this would not be asking too much. concur.Its accessory penalties. explicit. (Emphasis supplied) It is worthy of note that the rule embodied in Article 36 is reiterated four (4) times by the Revised Penal Code in its following provisions: Article 40. unless such rights be expressly restored by the terms of the pardon. Exactly the same point may. positive and specific language. unless the same shall have been expressly remitted in the pardon. Article 36 of the Revised Penal Code states: Article 36. Pardon. be made in respect of the restoration of the right to vote. J. Justice Padilla. . if the duration of said imprisonment shall exceed eighteen months... . from the right to follow a profession or calling.The penalty of prision correccional shall carry with it that of suspension from public office. Article 41. or the right of suffrage. 71 Phil. and that of perpetual special disqualification from the right of suffrage. its effects. Fernandez. I would add a few brief statements. I am aware that there are broad statement in Cristobal vs. .
merely require the President to become completely explicit if the pardon he extends is intended to wipe out not merely the principal but also the accessory penalty of disqualification from holding public office and from voting and to restore the recipient of the pardon to the exercise of such fundamental political rights. The Chief Justice appears to agree with this position when he referred to Article 36 of the Revised Penal Code (Opinion. Factoran. Gutierrez.Articles 36 and 40-43 of the Revised Penal Code. Melencio-Herrera. however... of the Revised Penal Code have not been shown to be an unconstitutional restriction on the pardoning power of the President. to say (in page 13) that: "the pardon granted to petitioner has resulted in removing her disqualification from holding public employment but it cannot go beyond that. collided with any provision or principle embodied in either of our prior constitutions. . Jr. Articles 36. Jr. Sarmiento. whether one refers to the 1935 Constitution or to the 1973 and 1987 Constitutions. does not create the presumption that the recipient of the pardon has thereby suddenly become morally eligible once more to exercise the right to vote and to hold public office. concur. I vote to DENY the Petition for Review and to AFFIRM the assailed Resolution of the then Executive Secretary Fulgencio S. the pardon extended to petitioner was ineffective to restore to her the right to hold public office and on this ground. Such requirement of explicitness seems entirely in line with the fundamental point made by the Chief Justice that a pardon does not blot out the factual guilt of the recipient of the pardon. does not appear to be an unreasonably onerous one. JJ. the mere grant of a pardon to a public officer or employee who has been unfaithful to the public trust and sentenced to disqualification from voting and from holding such office. with respect. I do not believe that Articles 36. et al. The limitation on the President's pardoning power. He goes on. I believe that they have been left intact by the constitutional provisions on pardon. et al. et al." It is submitted. Cruz. quoted above. p. that Articles 36. 5). In my view. have been in our statute books since 1930. if limitation it be. In other words.

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