The Supreme Court held that government employees who re-enter government service after retirement can have their prior years of service credited towards retirement benefits if they refund the previously received benefits. This decision clarifies that the absence of an explicit provision in Republic Act (R.A.) No. 8291 allowing such refunds does not negate the policy of crediting prior service upon refund. This ruling ensures that employees are not unfairly deprived of retirement benefits for their years of service, promoting fairness and recognizing their contributions to the government.

Re-entering Public Service: Can Refunded Benefits Revive Prior Government Service Credit?

The case revolves around Reynaldo P. Palmiery, a former government employee who retired, received benefits, and then re-entered government service. Upon his second retirement, the Government Service Insurance System (GSIS) refused to credit his prior years of service, arguing that R.A. No. 8291 does not allow it, even though Palmiery refunded his previous retirement benefits. The central legal question is whether Palmiery’s refunded benefits can revive his prior government service credit for the purpose of calculating his retirement benefits under R.A. No. 8291.

Palmiery’s career began in 1961, and after a long tenure, he retired from the Development Bank of the Philippines (DBP) in 1987, receiving gratuity benefits under R.A. No. 1616. He then re-entered government service, working at the Social Security System (SSS) before retiring again in 1994 and receiving a lump sum pension under R.A. No. 660. Later, in 1998, he became a member of the GSIS Board of Trustees and refunded the previously received benefits, also requesting the suspension of his monthly pension. Upon reaching mandatory retirement age in 2005, Palmiery applied for retirement benefits under R.A. No. 8291, seeking full credit for his total government service. The GSIS denied his application, citing Policy and Procedural Guidelines (PPG) No. 183-06, which excludes prior service for re-employed officials who re-entered after the effectivity of R.A. No. 8291.

The Court of Appeals (CA) reversed the GSIS decision, holding that under Section 12(g) of Commonwealth Act (C.A.) No. 186, a reinstated government employee may receive full credit for prior years of service if the retirement and pension benefits previously received are refunded. The CA emphasized that retirement laws should be liberally construed in favor of the beneficiaries. In its petition, the GSIS argued that Section 10(b) of R.A. No. 8291 treats re-entering employees as new entrants, excluding prior services credited to previous retirement benefits. Palmiery countered that only service credited for retirement for which corresponding benefits have been awarded should be excluded, and that the GSIS Primer on the GSIS Act of 1997 allows for the refund of previously received benefits.

The Supreme Court disagreed with the GSIS, asserting that the absence of a provision similar to Section 12(g) of C.A. No. 186 in R.A. No. 8291 does not necessarily mean that the law has abandoned the policy of crediting prior service upon refund. The Court highlighted that Section 10(b) of R.A. No. 8291 excludes service credited for retirement, resignation, or separation for which corresponding benefits have been awarded. Therefore, employees who have not received retirement benefits or have refunded them are entitled to full credit for their service. This interpretation aligns with the principle against double compensation, which prohibits payment for the same services covering the same period.

SECTION 10. Computation of Service. — (a) The computation of service for the purpose of determining the amount of benefits payable under this Act shall be from the date of original appointment/election, including periods of service at different times under one or more employers, those performed overseas under the authority of the Republic of the Philippines, and those that may be prescribed by the GSIS in coordination with the Civil Service Commission.

(b) All service credited for retirement, resignation or separation for which corresponding benefits have been awarded under this Act or other laws shall be excluded in the computation of service in case of reinstatement in the service of an employer and subsequent retirement or separation which is compensable under this Act.

The Court also noted that the GSIS itself initially subscribed to the policy of crediting prior services upon refund. The GSIS Primer on R.A. No. 8291 stated that services for which retirement contributions have been refunded could be included in the computation of service in case of reinstatement. By accepting Palmiery’s refund without dispute and suspending his monthly pension, the GSIS led Palmiery to assume that his years of service would be fully credited. The GSIS cannot retroactively apply PPG No. 183-06 to deny Palmiery’s claim, as this would prejudice his right to receive retirement benefits. As the Court noted in GSIS v. De Leon:

One could hardly fault respondent, though a seasoned lawyer, for relying on petitioner’s interpretation of the pertinent retirement laws, considering that the latter is tasked to administer the government’s retirement system. He had the right to assume that GSIS personnel knew what they were doing.

Denying Palmiery’s claim would deprive him of compensation for the years he served the government, despite his eligibility under the law. Furthermore, social legislation, including retirement laws, must be liberally construed in favor of the beneficiaries. The Court emphasized that retirement benefits serve as a reward for loyal service and should support retirees, especially when employment is no longer practical. All doubts should be resolved in favor of the retiree, aligning with the humanitarian purpose of retirement laws.

FAQs

What was the key issue in this case?	The key issue was whether a government employee who re-entered government service after retirement could have their prior years of service credited towards retirement benefits after refunding the previously received benefits.
What is R.A. No. 8291?	R.A. No. 8291, also known as “The Government Service Insurance System Act of 1997,” governs the retirement benefits of government employees in the Philippines. It outlines the conditions for retirement and the computation of service for benefit eligibility.
What did the GSIS argue in this case?	The GSIS argued that Section 10(b) of R.A. No. 8291 treats re-entering employees as new entrants, excluding prior services credited to previous retirement benefits. They cited internal guidelines (PPG No. 183-06) supporting this position.
How did the Court of Appeals rule?	The Court of Appeals reversed the GSIS decision, holding that under Section 12(g) of Commonwealth Act (C.A.) No. 186, a reinstated government employee may receive full credit for prior years of service if the retirement benefits are refunded.
What was the Supreme Court’s decision?	The Supreme Court affirmed the Court of Appeals’ decision, ruling that Palmiery was entitled to full credit for his prior years of service because he had refunded his previously received retirement benefits.
What is the significance of refunding retirement benefits in this case?	Refunding the previously received retirement benefits is crucial because it eliminates the issue of double compensation, allowing the employee’s prior years of service to be credited towards their new retirement benefits.
What is the principle against double compensation?	The principle against double compensation prohibits paying an employee twice for the same services covering the same period, which is why refunding prior benefits is essential for re-crediting service years.
Why is this case considered social legislation?	This case is considered social legislation because it involves laws designed to provide social benefits and security to employees, and such laws are liberally construed in favor of the beneficiaries.

In conclusion, the Supreme Court’s decision reinforces the principle that government employees should receive the full benefits they are entitled to based on their years of service. The ruling ensures that re-employed retirees who refund their benefits are not penalized, thereby promoting fairness and encouraging continued service to the government.

For inquiries regarding the application of this ruling to specific circumstances, please contact ASG Law through contact or via email at frontdesk@asglawpartners.com.

Disclaimer: This analysis is provided for informational purposes only and does not constitute legal advice. For specific legal guidance tailored to your situation, please consult with a qualified attorney.
Source: GOVERNMENT SERVICE INSURANCE SYSTEM (GSIS) vs. REYNALDO P. PALMIERY, G.R. No. 217949, February 20, 2019