Neri v. Senate
Neri v. Senate
Neri v. Senate
* EN BANC.
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R E S O L U T I O N
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1 Chaired by Hon. Senator Alan Peter S. Cayetano.
2 Chaired by Hon. Senator Manuel A. Roxas II.
3 Chaired by Hon. Senator Rodolfo G. Biazon.
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I
CONTRARY TO THIS HONORABLE COURT’S DECISION,
THERE IS NO DOUBT THAT THE ASSAILED ORDERS WERE
ISSUED BY RESPONDENT COMMITTEES PURSUANT TO
THE EXERCISE OF THEIR LEGISLATIVE POWER, AND NOT
MERELY THEIR OVERSIGHT FUNCTIONS.
II
CONTRARY TO THIS HONORABLE COURT’S DECISION,
THERE CAN BE NO PRESUMPTION THAT THE
INFORMATION WITHHELD IN THE INSTANT CASE IS
PRIVILEGED.
III
CONTRARY TO THIS HONORABLE COURT’S DECISION,
THERE IS NO FACTUAL OR LEGAL BASIS TO HOLD THAT
THE COMMUNICATIONS ELICITED BY THE SUBJECT
THREE (3) QUESTIONS ARE COVERED BY EXECUTIVE
PRIVILEGE, CONSIDERING THAT:
A. THERE IS NO SHOWING THAT THE MATTERS
FOR WHICH EXECUTIVE PRIVILEGE IS CLAIMED
CONSTITUTE STATE SECRETS.
B. EVEN IF THE TESTS ADOPTED BY THIS
HONORABLE COURT IN THE DECISION IS APPLIED,
THERE IS NO SHOWING THAT THE ELEMENTS OF
PRESIDENTIAL COMMUNICATIONS PRIVILEGE ARE
PRESENT.
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Executive privilege
The phrase “executive privilege” is not new in this
jurisdiction. It has been used even prior to the promulgation of
the 1986 Constitution. Being of American origin, it is best
understood in
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light of how it has been defined and used in the legal literature of
the United States.
Schwart defines executive privilege as “the power of the
Government to withhold information from the public, the
courts, and the Congress.” Similarly, Rozell defines it as “the
right of the President and high-level executive branch officers to
withhold information from Congress, the courts, and ultimately
the public.” x x x In this jurisdiction, the doctrine of executive
privilege was recognized by this Court in Almonte v. Vasquez.
Almonte used the term in reference to the same privilege subject
of Nixon. It quoted the following portion of the Nixon decision
which explains the basis for the privilege:
“The expectation of a President to the confidentiality of his
conversations and correspondences, like the claim of
confidentiality of judicial deliberations, for example, he has
all the values to which we accord deference for the privacy of all
citizens and, added to those values, is the necessity for protection
of the public interest in candid, objective, and even blunt or harsh
opinions in Presidential decision-making. A President and those
who assist him must be free to explore alternatives in the process of
shaping policies and making decisions and to do so in a way many
would be unwilling to express except privately. These are the
considerations justifying a presumptive privilege for
Presidential communications. The privilege is
fundamental to the operation of government and
inextricably rooted in the separation of powers under the
Constitution x x x” (Emphasis and italics supplied)
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22 Id., at p. 58.
23 Id., at p. 50.
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II
There Are Factual and Legal Bases to
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27 No. 96-3124, June 17, 1997, 121 F.3d 729,326 U.S. App. D.C. 276.
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28 365 F 3d. 1108, 361 U.S. App. D.C. 183, 64 Fed. R. Evid.
Serv.141.
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Neri vs. Senate Committee on Accountability of Public
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29 Article III, Sec. 7. The right of the people to information on matters
of public concern shall be recognized. Access to official records, and to
documents, and papers pertaining to official records, and to documents,
and papers pertaining to official acts, transactions, or decisions, as well as
to government research data used as basis for policy development, shall be
afforded the citizen, subject to such limitations as may be provided by law.
30 Article II, Sec. 24. The State recognizes the vital role of
communication and information in nation-building.
31 Article II, Sec. 28. Subject to reasonable conditions prescribed by
law, the State adopts and implements a policy of full public disclosure of
all its transactions involving public interest.
32 Article XI, Sec. 1. Public office is a public trust. Public officers and
employees must at all times be accountable to the people, serve them with
utmost responsibility, integrity, loyalty, and efficiency, act with patriotism
and justice, and lead modest lives.
33 Article XVI, Sec. 10. The State shall provide the policy
environment for the full development of Filipino capability and the
emergence of communications structures suitable to the needs and
aspirations of the nation and the balanced flow of information into,
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VII, Section 20;34 and Article XII, Sections 9,35 21,36 and
22.37
It must be stressed that the President’s claim of
executive privilege is not merely founded on her
generalized interest in confidentiality. The Letter dated
November 15, 2007 of Executive Secretary Ermita specified
presidential communications privilege in relation to
diplomatic and economic relations with another
sovereign nation as the bases for the claim. Thus, the
Letter stated:
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out of, and across the country, in accordance with a policy that respects
the freedom of speech and of the press.
34 Article VII, Sec. 20. The President may contract or guarantee
foreign loans on behalf of the Republic of the Philippines with the prior
concurrence of the Monetary Board, and subject to such limitations as
may be provided by law. The Monetary Board shall, within thirty days
from the end of every quarter of the calendar year, submit to Congress a
complete report of its decisions on applications for loans to be contracted
or guaranteed by the Government or government-controlled corporations
which would have the effect of increasing the foreign debt, and containing
other matters as may be provided by law.
35 Article XII, Sec. 9. The Congress may establish an independent
economic and planning agency headed by the President, which shall, after
consultations with the appropriate public agencies, various private
sectors, and local government units, recommend to Congress, and
implement continuing integrated and coordinated programs and policies
for national development. Until the Congress provides otherwise, the
National Economic and Development Authority shall function as the
independent planning agency of the government.
36 Article XII, Sec. 21. Foreign loans may only be incurred in
accordance with law and the regulation of the monetary authority.
Information on foreign loans obtained or guaranteed by the Government
shall be made available to the public.
37 Article XII, Sec. 22. Acts which circumvent or negate any of the
provisions of this Article shall be considered inimical to the national
interest and subject to criminal and civil sanctions, as may be provided by
law.
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III.
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contest all issues before a court of law. The need to develop all
relevant facts in the adversary system is both fundamental
and comprehensive. The ends of criminal justice would be
defeated if judgments were to be founded on a partial or
speculative presentation of the facts. The very integrity of
the judicial system and public confidence in the system
depend on full disclosure of all the facts, within the
framework of the rules of evidence. To ensure that justice
is done, it is imperative to the function of courts that
compulsory process be available for the production of
evidence needed either by the prosecution or by the defense.
x x x x x x x x x
The right to the production of all evidence at a criminal trial
similarly has constitutional dimensions. The Sixth Amendment
explicitly confers upon every defendant in a criminal trial the
right ‘to be confronted with the witness against him’ and
‘to have compulsory process for obtaining witnesses in his
favor.’ Moreover, the Fifth Amendment also guarantees that no
person shall be deprived of liberty without due process of
law. It is the manifest duty of the courts to vindicate those
guarantees, and to accomplish that it is essential that all
relevant and admissible evidence be produced.
In this case we must weigh the importance of the general
privilege of confidentiality of Presidential
communications in performance of the President’s
responsibilities against the inroads of such a privilege on
the fair administration of criminal justice. (emphasis
supplied)
x x x x x x x x x
... the allowance of the privilege to withhold evidence that is
demonstrably relevant in a criminal trial would cut deeply
into the guarantee of due process of law and gravely
impair the basic function of the courts. A President’s
acknowledged need for confidentiality in the
communications of his office is general in nature, whereas the
constitutional need for production of relevant evidence in
a criminal proceeding is specific and central to the fair
adjudication of a particular criminal case in the
administration of justice. Without access to specific facts a
criminal prosecution may be totally frustrated. The
President’s broad interest in confidentiality of
communication will
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ATTY. AGABIN
Well, the question has been asked but it was not answered, Your
Honor.
CHIEF JUSTICE PUNO
Yes. But my question is how critical is this to the lawmaking function
of the Senate?
ATTY. AGABIN
I believe it is critical, Your Honor.
CHIEF JUSTICE PUNO
Why?
ATTY. AGABIN
For instance, with respect to the proposed Bill of Senator Miriam
Santiago, she would like to indorse a Bill to include Executive
Agreements had been used as a device to the circumventing the
Procurement Law.
CHIEF JUSTICE PUNO
But the question is just following it up.
ATTY. AGABIN
I believe that may be the initial question, Your Honor, because if we
look at this problem in its factual setting as counsel for petitioner has
observed, there are intimations of a bribery scandal involving high
government officials.
CHIEF JUSTICE PUNO
Again, about the second question, were you dictated to prioritize this
ZTE, is that critical to the lawmaking function of the Senate? Will it
result to the failure of the Senate to cobble a Bill without this
question?
ATTY. AGABIN
I think it is critical to lay the factual foundations for a proposed
amendment to the Procurement Law, Your Honor, because the
petitioner had already testified that he was offered a P200 Million
bribe, so if he was offered a P200 Million bribe it is possible that other
government officials who had something to do with the approval of the
contract would be offered the same amount of bribes.
CHIEF JUSTICE PUNO
Again, that is speculative.
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ATTY. AGABIN
That is why they want to continue with the investigation, Your Honor.
CHIEF JUSTICE PUNO
How about the third question, whether the President said to go ahead
and approve the project after being told about the alleged bribe. How
critical is that to the lawmaking function of the Senate? And the
question is may they craft a Bill a remedial law without forcing
petitioner Neri to answer this question?
ATTY. AGABIN
Well, they can craft it, Your Honor, based on mere speculation. And
sound legislation requires that a proposed Bill should have some basis
in fact.42
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46 Id., at p. 776.
47 Id., at p. 783.
48 The dialogue between petitioner and Senator Lacson is a good
illustration, thus:
SEN. LACSON. Did you report the attempted bribe offer
to the President?
MR. NERI. I mentioned it to the President, Your Honor.
SEN. LACSON. What did she tell you?
MR. NERI. She told me, ‘Don’t accept it.”
SEN. LACSON. And then, that’s it?
MR. NERI. Yeah, because we had other things to discuss
during that time.
SEN. LACSON. And then after the President told you,
“Do not accept it,” what did she do? How did you report it to
the President? In the same context that it was offered to
you?
MR. NERI. I remember it was over the phone, Your
Honor.
SEN. LACSON. Hindi nga. Papaano ninyo ni-report,
‘Inoperan (offer) ako ng bribe na P200 million ni
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52 487 F. 2d 700.
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IV
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53 Professor Christopher Schroeder (then with the Clinton Justice Department),
for example, labeled some of Congress’s investigations as no more than “vendetta
oversight” or “oversight that seems primarily interested in bringing someone
down, usually someone close to the President or perhaps the President himself.”
Theodore Olson (the former Solicitor General in the Bush Justice Department), in
turn, has argued that oversight has been used improperly by Congress to influence
decision making of executive branch officials in a way that undercuts the
President’s power to assure that laws are faithfully executed. (Marshall, The
Limits on Congress’ Authority to Investigate the President, Marshall-Illinois.Doc,
November 24, 2004.)
54 103 U.S. 168 (1880).
55 Kenan Professor of Law, University of North Carolina.
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RULE XLIV
UNFINISHED BUSINESS
SEC. 123. Unfinished business at the end of the session shall
be taken up at the next session in the same status.
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RULE LI
AMENDMENTS TO, OR REVISIONS OF, THE RULES
SEC. 136. At the start of each session in which the
Senators elected in the preceding elections shall begin
their term of office, the President may endorse the Rules to
the appropriate committee for amendment or revision.
The Rules may also be amended by means of a motion which
should be presented at least one day before its consideration, and
the vote of the majority of the Senators present in the session
shall be required for its approval. (emphasis supplied)
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RULE LII
DATE OF TAKING EFFECT
SEC. 137. These Rules shall take effect on the date of
their adoption and shall remain in force until they are
amended or repealed. (emphasis supplied)
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SEPARATE OPINION
QUISUMBING, J.:
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1 Neri v. Senate, G.R. No. 180643, March 25, 2008, 547 SCRA 77.
2 1987 Constitution, Article VIII, Sec. 1.
Section 1. The judicial power shall be vested in one Supreme
Court and in such lower courts as may be established by law.
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Judicial power includes the duty of the courts of justice to settle actual
controversies involving rights which are legally demandable and
enforceable, and to determine whether or not there has been a grave abuse
of discretion amounting to lack or excess of jurisdiction on the part of any
branch or instrumentality of the Government.
3 G.R. Nos. 169777, 169659, 169660, 169667, 169834 & 171246, April 20, 2006,
488 SCRA 1.
4 Id., at p. 44.
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“The reason is that in the past this power was much abused by
some legislators who used it for illegitimate ends or to browbeat
or intimidate witnesses, usually for grandstanding purposes only.
There were also times when the subject of the inquiry was purely
private in nature and therefore outside the scope of the powers of
the Congress.
To correct these excesses, it is now provided that the legislative
inquiry must be in aid of legislation, whether it be under
consideration already or still to be drafted. Furthermore, the
conduct of the investigation must be strictly in conformity with
the rules of proce-
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23 Rodriguez v. Bonifacio, A.M. No. RTJ-99-1510, November 6, 2000,
344 SCRA 519, 545-546.
24 Summary Dismissal Board and the Regional Appellate Board, PNP,
Region VI, Iloilo City v. Torcita, 330 SCRA 153, 164.
25 G.R. No. 139844, December 15, 2000, 348 SCRA 425.
26 Id., at pp. 433 & 439.
27 Cf Secretary of Justice v. Lantion, G.R. No. 139465, January 18,
2000, 322 SCRA 160, 204.
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DISSENTING OPINION
PUNO, C.J.:
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1 Bruhl, A., “If the Judicial Confirmation Process is Broken, Can a Statute Fix
It?” 85 Nebraska Law Review 960 (2007).
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5 Tañada v. Tuvera, 230 Phil. 528, 533-535; 146 SCRA 446, 453-454
(1986); The Veterans Federation of the Philippines v. Reyes, G.R. No.
155027, February 28, 2006, 483 SCRA 526; Umali v. Estanislao, G.R. No.
104037, May 29, 1992, 209 SCRA 446.
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252 SUPREME COURT REPORTS ANNOTATED
Neri vs. Senate Committee on Accountability of Public Officers
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13 Id., at p. 208.
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which must fully reconstitute itself every two years’) (citing The Federalist
No. 63 [James Madison]).” Id. (emphasis supplied)
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29 Id.
30 87 Phil. 29 (1950).
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This was the context of the above quote from the Dissent of Justice
Abbett in the Dissenting and Concurring Opinion of Justice Carpio.
Clearly, this finds no application in the Philippines where both the
“remaining senators” and newly elected senators present are
counted for purposes of satisfying the majority quorum
requirement as will be subsequently shown.
34 1935 Phil. Const., Art. VI, §20(2) provides, viz.:
(2) The President shall have the power to veto any particular
item or items of an appropriation bill, but the veto shall not affect
the item or items to which he does not object. When a provision of
an appropriation bill affects one or more items of the same, the
President cannot veto the provision without at the same time,
vetoing the particular item or items to which it relates. The item or
items objected to shall not take effect except in the manner
heretofore provided as to bills returned to the Congress without the
approval of the President. If the veto refers to a bill or any item of
an appropriation bill which appropriates a sum in excess of ten per
centum of the total amount voted in the appropriation bill for the
general expenses of the Government for the preceding year, or if it
should refer to a bill authorizing an increase of the public debt, the
same shall not become a law unless approved by three-fourths of
all the Members of each House. (emphasis supplied)
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39 1 Records of the Senate, 4th Cong., 1st Reg. Sess., January 27, 1958,
pp. 1-2; 1 Records of the Senate, 3rd Cong., 1st Reg. Sess., January 25,
1954, pp. 1-2.
40 1 Records of the Senate, 14th Cong., 1st Reg. Sess., July 23, 2007, p.
3; 1 Records of the Senate, 13th Cong., 1st Reg. Sess., July 26, 2004, p. 6; 1
Records of the Senate, 12th Cong., 1st Reg. Sess., July 23, 2001 p. 3; 1
Records of the Senate, 11th Cong., 1st Reg. Sess., July 27, 1998, pp. 4-5; 1
Records of the Senate, 10th Cong., 1st Reg. Sess., July 24, 1995, p. 3; 1
Records of the Senate, 9th Cong., 1st Reg. Sess., July 27, 1992, p. 3.
41 Mcginnis, J. & Rappaport, M., “The Constitutionality of Legislative
Supermajority Requirements: A Defense,” 105 Yale Law Journal 483
(1995), citing Walz v. Tax Commission, 397 U.S. 664, 678 (1970).
42 Journal of the U.S. Senate, 2d Cong., 1st Sess., October 24, 1791, pp.
821-824.
43 U.S. Congressional Record, Proceedings and Debates of the 110th
Congress (Senate), 1st Sess., January 4, 2007, pp. 4-5.
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56 Id.
57 1 Journal of the Phil. Senate, 14th Cong., 1st Reg. Sess., July 23 &
24, 2007.
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61 Dunn, C., “Playing by the Rules: The Need for Constitutions to Define
the Boundaries of the Legislative Game with a One-Subject Rule,” 35
University of West Los Angeles Law Review 129 (2002-2003).
62 Id., citing Jefferson, T., A Manual of Parliamentary Practice 13
(1873).
63 144 U.S. 1 (1892); Taylor, P., “Proposals to Prevent Discontinuity in
Government and Preserve the Right to Elected Representation,” 54
Syracuse Law Review 435 (2004).
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“The action taken was in direct compliance with this rule. [Rule
15 provides, viz: ‘... (3) On the demand of any member, or at the
suggestion of the speaker, the names of members sufficient to
make a quorum in the hall of the house who do not vote shall be
noted by the clerk and recorded in the journal, and reported to the
speaker with the names of the members voting, and be counted
and announced in determining the presence of a quorum to do
business.’ H. J. 230, Feb. 14, 1890.] The question, therefore, is as
to the validity of this rule, and not what methods the speaker may
of his own motion resort to for determining the presence of a
quorum, nor what matters the speaker or clerk may of their own
volition place upon the journal. Neither do the advantages or
disadvantages, the wis-
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speaker with the names of the members voting, and be counted and announced in
determining the presence of a quorum to do business.” House Journal 230, Feb. 14,
1890, cited in United States v. Ballin, 144 U.S. 1, 5 (1892).
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AZCUNA, J.:
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here nor there. For me, it is judicial action that is right and
reasonable, taken without fear or favor, unmindful of
incidental consequences.
I thus take exceptions to the unfounded criticisms.
For one, a concurrence in the result is not
unprecedented. Several justices in this Court’s long history
had voted in a similar fashion. Then Chief Justice Ramon
Aquino voted in the same manner in the 1985 case of
Reformina v. Tomol, Jr.,3 a case tackling the proper
interest rate in an action for damages for injury to persons
and loss of property.
In the 2001 landmark case of Estrada v. Desierto,4
involving the twin issues of the resignation of deposed
President Joseph Estrada and the legitimacy of the
assumption of President Gloria Macapagal-Arroyo as his
successor, Justices Kapunan, Pardo, Buena, Ynares-
Santiago and Sandoval-Gutierrez concurred in the result of
the decision penned by Chief Justice Reynato S. Puno.5 In
2006, Chief Justice Panganiban voted similarly in Republic
v. Hong,6 a case revisiting the mandatory requirement of a
“credible witness” in a naturalization proceeding under
Commonwealth Act 473.
For another, there should be no point of confusion. A
concurrence in the result is a favorable vote for the decision
crafted by the ponente. It simply means that I agreed in the
outcome or disposition of the case, but not necessarily on
all the grounds given in the ponencia. I concurred with the
weightier reasons stated in the majority decision to grant
the petition for certiorari and to quash the Senate arrest
and contempt order against petitioner, Secretary Neri.
However, I did not share some of the reasoning of the
ponente.
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3 G.R. No. L-59096, October 11, 1985, 139 SCRA 260, 267.
4 G.R. Nos. 146710-15, March 2, 2001, 353 SCRA 452, 531.
5 J. Kapunan, J. Ynares-Santiago, and J. Sandoval-Gutierrez reserved
the right to file separate opinions.
6 G.R. No. 168877, March 24, 2006, 485 SCRA 405, 423.
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288 SUPREME COURT REPORTS ANNOTATED
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20 Supra note 9.
21 Senate of the Philippines v. Ermita, id., at p. 52.
22 Motion for reconsideration, p. 15.
23 Id., at pp. 14-20.
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37 The following are the resolutions passed in the Senate in connection
with the NBN-ZTE investigation:
1. P.S. Res. (Philippine Senate Resolution) No. 127, introduced
by Senator Aquilino Q. Pimentel, Jr., entitled:
Resolution Directing the Blue Ribbon Committee and the
Committee on Trade and Industry to Investigate, in Aid of
Legislation, the Circumstances Leading to the Approval of the
Broadband Contract with ZTE and the Role Played by the Officials
Concerned in Getting It Consummated and to Make
Recommendations to Hale to the Courts of Law the Persons
Responsible for any Anomaly in Connection therewith, if any, in the
BOT Law and other Pertinent Legislations.
2. P.S. Res. No. 129, introduced by Senator Panfilo M. Lacson,
entitled:
Resolution Directing the Committee on National Defense and
Security to Conduct an Inquiry in Aid of Legislation into the
National Security Implications of Awarding the National
Broadband Network Contract to the Chinese Firm Zhong Xing
Telecommunications Equipment Company Limited (ZTE
Corporation) with the End in View of Providing Remedial
Legislation that Will Further Protect Our National Sovereignty
Security and Territorial Integrity.
3. P.S. Res. No. 136, introduced by Senator Miriam Defensor
Santiago, entitled:
Resolution Directing the Proper Senate Committee to Conduct
an Inquiry, in Aid of Legislation, on the Legal and Economic
Justification of the National Broadband Network (NBN) Project of
the Government.
4. P.S. Res. No. 144, introduced by Senator Manuel Roxas III,
entitled:
Resolution Urging Gloria Macapagal-Arroyo to Direct the
Cancellation of the ZTE Contract.
38 The following are the Privilege Speeches delivered in connection
with the NBN ZTE investigation:
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criminal proceedings.
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59 Concurring opinion of J. Carpio, pp. 28-31.
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“The term of office of the Senators shall be six years and shall
commence, unless otherwise provided by law, at noon on the
thirtieth day of June next following their election.”
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“The Court will not sally into the legitimate domain of the
Senate on the plea that our refusal to intercede might lead into a
crisis, even a revolution. No state of things has been proved that
might change the temper of the Filipino people as a (sic) peaceful
and law-abiding citizens. And we should not allow ourselves to be
stampeded into a rash action inconsistent with the claim that
should characterize judicial deliberations.”74
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73 83 Phil. 17 (1949).
74 Avelino v. Cuenco, id., at p. 22.
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