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1 The Philippine Justice System The Philippine Justice System The Independence and Impartiality of the Judiciary and Human Rights from 1986 till 1997 Jan Willem Bakker ‘You shall appoint judges and officers in ail your towns which the Lord your God gives you, according to your tribes. You shall not pervert justice; you shall not show partiality; you shall not take a bribe; for a bribe blinds the eyes of the wise and subverts the cause of the righteous. Justice, and only justice, you shall follow, that you may live and inherit the land which the Lord your God gives you’ (The Holy Bible, Deuteronomy 16: 18-20). ISBN 90-71042-97-9 © pioom , 1997 c/o LISWO, Leiden University Wassenaarseweg 52, 2333 AK Leiden, the Netherlands Phone: +31-71-527 3861, fax: +31-71-527 3788/3619 © Centre for the Independence of Judges and Lawyers, 1997 P.O. Box 216, 81A, avenue de Châtelaine, CH-1219 Châtelaine/Geneva, Switzerland Phone: +41-22-979 3800, fax: +41-22-979 3801 No part of this book may be reproduced in any form by print, photoprint, microfilm or any other means without the prior written permission from the publisher. Table of Contents Acknowledgements iii Map of the Philippines vii Préfacé ix Foreword xv Chapter 1. Main Features of the Nation and People 1 Geography, People, and Economie Situation 1 Socio-Cultural Features of the Country 3 Political Structure of the Country 6 The Structure and Hierarchy of the Légal Sector 7 Chapter 2. Political History of the Country 15 The Period until Independence in 1946 and its Lasting Legacy 15 Philippine Democracy after Independence 17 The Marcos Dictatorship 20 The Changing of the Tide and the EDSA Revoit 23 The EDSA Aftermath and the Marcos Legacy 25 The Transition from Aquino to Ramos 34 Chapter 3. Human Rights and Due Process in the Philippines 43 Human Rights Concerns after EDSA 43 The Supreme Court, Human Rights and Survival Tactics during the Aquino Administration 52 The Lower Courts and Politically-Inspired Human Rights Violations 60 Crime and Due Process 63 Summary and Considérations 75 Chapter 4. Politics and the Independence of the Judiciary and the Bar 83 Fiscal Autonomy and Administrative Supervision of the Courts 83 The Appointment of Judges and Justices 87 The Economie and Political Power of the Judiciary 93 Politicians and Judicial Décisions 101 The Independence of the Bar 103 Summary and Considérations 106 Chapter 5. Challenges to Judicial Independence, Impartiality and Credibility from Non-Political Actors 113 Personalistic Pressures on Judges and Justices 113 Corruption and Perceptions of Corruption 118 Judicial Corruption and Income 121 Corruption, Status, Nepotism and Ethics 127 Supervision and Discipline 131 The Press and Judicial Credibility 137 The Press and the ‘Judicial Cdsis’ (1992-1993) 142 The Press and a Second ‘Judicial Crisis’ (1996) 146 Summary and Considérations 149 Chapter 6. Fair and Speedy Justice for ail Citizens 157 Backlog and Court Delay 157 Causes of Backlog and Court Delay 158 Lawyers and Court Delay 162 Measures to Reduce Backlog 166 The Work Load of the Supreme Court 174 Social Distribution of Justice 177 Access to Justice for Religious and Ethnie Minorities 185 Summary and Considérations 187 Chapter 7. Main Conclusions 195 Introduction 195 Human Rights Problems and Issues after the EDSA Revoit 195 Judicial Problems and Economie Factors 197 Judicial Problems and Organizational Factors 199 Judicial Problems and Political Factors 203 Judicial Problems and Socio-Cultural Factors 206 Final Comments 209 Selected Bibliography 211 Acknowledgements First of ail I would like to express my gratitude to four important people who have read and commented on an earlier draft of this book: Justice Abraham F. Sarmiento, retired Justice of the Supreme Court and vétéran human rights advocate; Atty. Haydee B. Yorac, private practitioner, human rights advocate, former member of the Comelec and Professor of Law; Atty. Rene V. Sarmiento, private practitioner, human rights advocate and member of the Constitutional Commission of 1986; and Atty. Johannes L. Ignacio, Director Alterlaw and member of the Judicial Reorganization Committee of 1986. I would like to thank the following people for supplying me with relevant documentation: Hon. Ernani Cruz Pano, Court Administrator at the Supreme Court; Atty. Thelma C. Bahia of the Office of the Court Administrator of the Supreme Court; Atty. Percival O. Flores, head of the législative staff of the office of Senator Roco; Atty. Antonio H. Dujua, Executive Secretary at the Department of Justice; Atty. Jacqueline V. Meja of the Commission on Human Rights; Professor Myma S. Feliciano, Director of the Institute of Judicial Administration of the University of the Philippines; Atty. Carmelo A. Tubal, private practitioner and consultant to the Committee on Justice and Human Rights of the Philippine Congress, Elnora C. Romero, Napoléon Impérial and Leni Magalit from NEDA. I am further most grateful to those who allowed me to discuss with them personally their views on various issues regarding human rights and the légal system. In alphabetical order they include: - Hon. Salvador S. Abad Santos, RTC judge; - Hon. Bemardo P. Abesamis, Deputy Court Administrator, former Président of the Philippine Judges Association; - Atty. Ferdinand R. Abesamis, Senior State Prosecutor of the Presidential Anti-Crime Commission; - Professor Froilan M. Bacungan, former Dean of the UP College of Law and private practitioner; - Dr. Ilka Bailey-Wiebecke, former Editor of the Philippine Human Rights FORUM; - Atty. Milabel Christobal, private practitioner and human rights advocate; - Mercedes V. Contreras, Commissioner at the Commission on Human Rights; - Hon. Ernani Cruz Pano, Court Administrator; - Justice Irene R. Cortez, retired Justice of the Supreme Court; - Hon. Marino M. de la Cruz, RTC judge; - Ma. Socorro Diokno, General-Secretary of the Free Légal Assistance Group; - Atty. Antonio H. Dujua, Executive Secretary at the Department of Justice; - Atty. Mervin G. Encanto, Senior Vice-President Légal Services Division of the UNCPB, former Président of the IBP; - Atty. Ramon S. Esguerra, private practitioner, former Undersecretary at the Department of Justice; iv Acknowledgements - Atty. Fulgencio S. Factoran, private practitioner, former Minister of the Environment and human rights advocate; - Justice Marcelo B. Fernan, Senator and former Chief Justice; - Professor Perfecto V. Fernandez, Professor of Law, UP Law Center; - Tessy Gapas, CARITAS Manila; - Atty. Ramon Garcia, Assistant Chief State-Prosecutor; - Marietta P. Goco, Director of the Moral Recovery Program; - Raul I. Goco, former Solicitor-General; - Atty. José A. Grapilon, former National Executive Director of the IBP; - Hon. Félix M. de Guzman, RTC judge and Secretary, Philippine Judges Association; - Atty. Johannes L. Ignacio, Director Alterlaw and member of the Judicial Réorganisation Committee of 1986. - Florinda T. Juarez, Executive Director, Institute for Studies in Asia Church and Culture; - Justice Santiago M. Kapunan, former Presiding Justice of the Court of Appeals (presently Associate Justice of the Supreme Court); - Atty. Glenda T. Litong, Deputy Director for Légal Aid of the IBP; - Justice Ramon Mabutas, Associate Justice of the Court of Appeals; - Dr. Melba P. Maggay, Président of the Institute for Asian Church and Culture; - Atty. Hesiquio R. Malillin, private practitioner, former Commissioner of the Commis­ sion on Human Rights; - Resurreccione L. Manalo, Executive Director of the Philippine Human Rights Informa­ tion Center; - Atty. Samuel Manutog, private practitioner, Board Member, Protestant Lawyers League; - Atty. Carlos P. Medina, Jr., former Executive Director of the Human Rights Center of Ateneo Law School; - Atty. Ruben Mendoza, private practitioner; - Atty. Orlando B. Medrano, private practitioner; - Walter Oostenbos, Second Secretary of the Royal Netherlands Embassy; - Amb. Sedfrey A. Ordonez, former Chairman of the Commission on Human Rights, former Minister of Justice, former Sollicitor-General and former Ambassador to the United Nations; - Raul J. Palabrica, head of the légal division of the PLDT, Professor of Law and newspaper columnist; - Justice Cecilia M. Palma, retired Associate Justice of the Supreme Court, Président of the Constitutional Commission of 1986; - Hon. Ruben T. Reyes, RTC judge (presently Associate Justice of the Court of Ap­ peals); - Justice Jainal D. Rasul, Associate Justice of the Court of Appeals; - Justice Florenz D. Regalado, Associate Justice of the Supreme Court; - Senator Raul S. Roco; - Atty. Rene A.V. Saguisag, private practitioner, human rights advocate, former Senator and former assistant of Président Aquino; Acknowledgements v - Atty. Jovito Salonga, former Senator and famous Marcos opponent; - Justice Abraham F. Sarmiento, retired Justice of the Supreme Court and vétéran human rights advocate; - Atty. Rene V. Sarmiento, private practitioner, human rights advocate and member of the Constitutional Commission of 1986; - Atty. Sereno, State Prosecutor; - Senator Leticia R. Shahani; - Paulynn P. Sicam, former Commissioner of the Commission on Human Rights; - Atty. Wigberto Tanada, Member of Congress, former Senator; and - Atty. Haydee B. Yorac, private practitioner, human rights advocate, former member of the Comelec and Professor of Law. I also want to thank Mona Rishmawi, Director of the Center for the Independence of Judges and Lawyers of the International Commission of Jurists at Geneva, and Professor Alex Schmid, Research Director of the
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