The Supreme Court, in these consolidated cases, addressed critical issues surrounding the crime of plunder, bail applications, and preliminary attachments. The Court upheld the Sandiganbayan’s denial of bail for accused Cambe and Napoles, finding strong evidence of their guilt in conspiring to commit plunder. Revilla withdrew his petition questioning the bail denial. The Court also affirmed the Sandiganbayan’s decision to issue a writ of preliminary attachment against Revilla’s assets to secure potential civil liability, emphasizing that this is a provisional remedy distinct from the final forfeiture of ill-gotten wealth. These rulings underscore the stringent standards applied in plunder cases and the importance of preliminary attachments in preserving assets subject to forfeiture.

PDAF Scandal: Can Accused be Granted Bail Amid Plunder Allegations?

These cases arose from an Information filed by the Office of the Ombudsman in the Sandiganbayan, charging Ramon “Bong” B. Revilla, Jr., Richard A. Cambe, Janet Lim Napoles, and others with plunder under Section 2 of Republic Act No. (RA) 7080. The Amended Information alleged that from 2006 to 2010, the accused unlawfully amassed ill-gotten wealth amounting to at least TWO HUNDRED TWENTY FOUR MILLION FIVE HUNDRED TWELVE THOUSAND FIVE HUNDRED PESOS (Php224,512,500.00) through a series of overt criminal acts involving kickbacks and commissions from Revilla’s Priority Development Assistance Fund (PDAF).

The prosecution contended that Napoles’ non-government organizations (NGOs) became the recipients of Revilla’s PDAF projects, which were ultimately ghost or fictitious, enabling Napoles to misappropriate the funds for personal gain. The central legal questions revolved around the denial of bail to the accused and the propriety of issuing a writ of preliminary attachment against Revilla’s assets.

The Sandiganbayan denied the separate applications for bail filed by Revilla, Cambe, and Napoles, holding that the prosecution duly established with strong evidence that the accused, in conspiracy with one another, committed the crime of plunder. The constitutional right to bail, as provided in Section 13, Article III of the 1987 Constitution, states that:

All persons, except those charged with offenses punishable by reclusion perpetua when evidence of guilt is strong, shall, before conviction, be bailable by sufficient sureties, or be released on recognizance as may be provided by law. The right to bail shall not be impaired even when the privilege of the writ of habeas corpus is suspended. Excessive bail shall not be required.

Rule 114 of the Rules of Court emphasizes that offenses punishable by death, reclusion perpetua or life imprisonment are non-bailable when the evidence of guilt is strong. Thus, the grant or denial of bail hinges on whether or not the evidence of guilt of the accused is strong. This requires the conduct of bail hearings where the prosecution has the burden of showing that the evidence of guilt is strong.

The Supreme Court emphasized that judicial discretion must be guided by constitutional and statutory provisions, court rules, and principles of equity and justice. The discretion of the court, once exercised, cannot be reviewed by certiorari save in instances where such discretion has been so exercised in an arbitrary or capricious manner.

In finding strong evidence of guilt against Cambe, the Sandiganbayan considered the PDAF documents and the whistleblowers’ testimonies in finding that Cambe received, for Revilla, the total amount of P103,000,000.00, in return for Revilla’s endorsement of the NGOs of Napoles as the recipients of Revilla’s PDAF. It gave weight to Luy’s summary of rebates and disbursement ledgers containing Cambe’s receipt of money, which Luy obtained from his hard drive. The Sandiganbayan likewise admitted Narciso as expert witness, who attested to the integrity of Luy’s hard drive and the files in it.

In finding strong evidence of guilt against Napoles, the Sandiganbayan considered the AMLC Report, as attested by witness Santos, stating that Napoles controlled the NGOs, which were the recipients of Revilla’s PDAF. The Sandiganbayan found that the circumstances stated in the AMLC Report, particularly that the bank accounts of these NGOs were opened by the named presidents using JLN Corp. IDs, these accounts are temporary repository of funds, and the withdrawal from these accounts had to be confirmed first with Napoles, are consistent with the whistleblowers’ testimonies.

Cambe argued that the Sandiganbayan Resolutions were based on mere presumptions and inferences. On the other hand, the Sandiganbayan considered the entire record of evidence in finding strong evidence of guilt. The weight of evidence necessary for bail purposes is not proof beyond reasonable doubt, but strong evidence of guilt, or “proof evident,” or “presumption great.” A finding of “proof evident” or “presumption great” is not inconsistent with the determination of strong evidence of guilt.

Regarding the issuance of the writ of preliminary attachment, the Supreme Court underscored that the provisional remedy of attachment on the property of the accused may be availed of to serve as security for the satisfaction of any judgment that may be recovered from the accused. Rules 57 and 127 of the Rules of Court provide the legal framework for preliminary attachment. Rule 127 states that the provisional remedy of attachment on the property of the accused may be availed of to serve as security for the satisfaction of any judgment that may be recovered from the accused when the criminal action is based on a claim for money or property embezzled or fraudulently misapplied or converted to the use of the accused who is a public officer, in the course of his employment as such, or when the accused has concealed, removed or disposed of his property or is about to do so.

Rule 57 provides that attachment may issue: “x x x (b) in an action for money or property embezzled or fraudulently misapplied or converted to his own use by a public officer x x x; (c) in an action to recover the possession of property unjustly or fraudulently taken, detained or converted, when the property, or any part thereof, has been concealed, removed, or disposed of to prevent its being found or taken by the applicant or an authorized person; x x x.”

It is indispensable for the writ of preliminary attachment to issue that there exists a prima facie factual foundation for the attachment of properties, and an adequate and fair opportunity to contest it and endeavor to cause its negation or nullification. The Court found that the Sandiganbayan acted within its jurisdiction since all the requisites for the issuance of a writ of preliminary attachment have been complied with.

The Court clarified that the issuance of a writ of preliminary attachment is an ancillary remedy applied for not for its own sake but to enable the attaching party to realize upon the relief sought and expected to be granted in the main or principal action. It is available during the pendency of the action which may be resorted to by a litigant to preserve and protect certain rights and interests during the interim, awaiting the ultimate effects of a final judgment in the case.

FAQs

What was the key issue in this case?	The key issue was whether the Sandiganbayan committed grave abuse of discretion in denying bail to the accused and in issuing a writ of preliminary attachment. The Supreme Court reviewed the Sandiganbayan’s decisions regarding bail applications and the issuance of a writ of preliminary attachment.
What is plunder under Philippine law?	Plunder is a crime committed by a public officer who, by himself or in connivance with others, amasses ill-gotten wealth amounting to at least Fifty Million Pesos (P50,000,000.00) through a combination or series of overt or criminal acts. It is defined and penalized under Section 2 of Republic Act No. (RA) 7080, as amended.
What is bail, and when can it be denied?	Bail is the security given for the release of a person in custody of the law, furnished by him or a bondsman, conditioned upon his appearance before any court when required. It can be denied if the person is charged with an offense punishable by death, reclusion perpetua, or life imprisonment and the evidence of guilt is strong.
What is a writ of preliminary attachment?	A writ of preliminary attachment is a provisional remedy in civil actions that allows a party to attach the property of the opposing party as security for the satisfaction of any judgment that may be recovered. It is governed by Rule 57 of the Rules of Court and is available in specific circumstances.
What must the prosecution prove to deny bail in a plunder case?	To deny bail, the prosecution must demonstrate that the evidence of guilt is strong, meaning there is clear, strong evidence leading to the conclusion that the offense has been committed as charged and the accused is the guilty agent. This determination is made during bail hearings.
What are the grounds for issuing a writ of preliminary attachment?	The writ can be issued when the action is based on a claim for money or property embezzled or fraudulently misapplied by a public officer or when the accused has concealed, removed, or disposed of his property to prevent it from being found. A prima facie factual foundation is required.
Is a hearing required before issuing a writ of preliminary attachment?	No, a writ of preliminary attachment may be issued ex parte or upon motion with notice and hearing, depending on the court’s discretion. An ex parte issuance is allowed to avoid alerting suspected possessors of ill-gotten wealth.
How does a preliminary attachment differ from forfeiture?	A preliminary attachment is an ancillary remedy available during the pendency of an action, while forfeiture is a penalty imposed upon a final judgment of conviction. Attachment secures assets pending the outcome of the case, whereas forfeiture transfers ownership to the State after conviction.

In conclusion, the Supreme Court’s decision reinforces the legal standards and procedures applicable in plunder cases, highlighting the critical role of bail hearings and provisional remedies in ensuring accountability. The stringent requirements for denying bail and issuing preliminary attachments underscore the balance between protecting individual rights and safeguarding public interests in cases involving alleged corruption and ill-gotten wealth.

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: Ramon “Bong” B. Revilla, Jr. vs. Sandiganbayan, G.R. No. 218232, July 24, 2018