Tan Tiong Bio filed a perjury complaint against Atty. Alice Odchigue-Bondoc based on statements in her counter-affidavit in an Estafa case. The Supreme Court ruled that the Department of Justice (DOJ) did not commit grave abuse of discretion when it dismissed the perjury complaint. This decision clarifies the extent of judicial review over prosecutorial discretion during preliminary investigations, emphasizing that courts should not interfere unless there is a clear abuse of discretion.
DOJ’s Dismissal Power: Constitutional Scrutiny vs. Preliminary Inquiry
This case stems from a complaint for Estafa filed by Tan Tiong Bio against Fil-Estate officials, including Atty. Alice Odchigue-Bondoc. The Estafa case was a result of Fil-Estate’s failure to deliver the title for a paid lot. In her counter-affidavit, Atty. Odchigue-Bondoc denied any direct dealings with Tan. Subsequently, Tan filed a perjury complaint against Atty. Odchigue-Bondoc based on these statements, which was initially dismissed by the Pasig City Prosecutor’s Office. The DOJ affirmed this dismissal, leading to a Court of Appeals decision setting aside the DOJ’s resolution, arguing it violated Section 14, Article VIII of the Constitution, requiring decisions to state clearly the facts and law on which they are based. The central legal question is whether the DOJ’s resolution dismissing the perjury complaint must adhere to the constitutional requirement of explicitly stating the factual and legal basis.
The Supreme Court, in resolving the petition, addressed the applicability of Section 14, Article VIII of the Constitution to resolutions issued by the DOJ Secretary. The Court emphasized that this constitutional provision applies specifically to decisions of “courts of justice” and does not extend to rulings of executive departments like the DOJ. The Court stated that:
Section 14. No decision shall be rendered by any court without expressing clearly and distinctly the facts and the law on which it is based.
No petition for review or motion for reconsideration of a decision of the court shall be refused due course or denied without stating the legal basis therefor.
Building on this principle, the Supreme Court clarified that a preliminary investigation is not a quasi-judicial proceeding. It reiterated that “the prosecutor in a preliminary investigation does not determine the guilt or innocence of the accused.” The role of the prosecutor is inquisitorial, aimed at discovering persons who may be reasonably charged with a crime and preparing the complaint or information. The court explicitly mentioned:
[A prosecutor] does not exercise adjudication nor rule-making functions. Preliminary investigation is merely inquisitorial, and is often the only means of discovering the persons who may be reasonably charged [of] a crime and to enable the [prosecutor] to prepare his complaint or information. It is not a trial of the case on the merits and has no purpose except that of determining whether a crime has been committed and whether there is probable cause to believe that the accused is guilty thereof. While the [prosecutor] makes that determination, he cannot be said to be acting as a quasi-court, for it is the courts, ultimately, that pass judgment on the accused, not the [prosecutor].
The Supreme Court also addressed the DOJ’s authority to dismiss a petition for review under Section 12 of the National Prosecution Service (NPS) Rule on Appeal. The respondent argued that an “outright” dismissal is not sanctioned under Section 12 but under Section 7 of the NPS Rule on Appeal. The Court clarified that the use of the word “outright” was merely in conjunction with the motu proprio action, further elaborating that Section 7 has different grounds for the outright dismissal of a petition for review, such as when the petition is patently without merit or intended for delay.
The Court explained that Sections 7 and 12 represent a two-step approach in the DOJ Secretary’s review power. Initially, the Secretary determines if the petition suffers from any of the infirmities laid down in Section 7. If none exist, the Secretary can then decide what action to take under Section 12, which includes reversing, modifying, affirming, or dismissing the appeal altogether. Thus, the DOJ’s dismissal was deemed appropriate within its discretionary powers.
Furthermore, the Court underscored the principle of non-interference in the public prosecutor’s determination of probable cause, absent grave abuse of discretion. The Court stated that courts should not interfere with the prosecutor’s findings, as it would lead to an overwhelming number of petitions reviewing the exercise of prosecutorial discretion. This underscores the respect for the prosecutor’s role in the initial stages of criminal proceedings.
FAQs
What was the key issue in this case? | The key issue was whether the DOJ’s resolution dismissing a petition for review in a perjury case must comply with Section 14, Article VIII of the Constitution, requiring decisions to state the facts and law on which they are based. |
What did the Supreme Court rule? | The Supreme Court ruled that the DOJ’s resolution was not required to comply with Section 14, Article VIII of the Constitution because a preliminary investigation is not a quasi-judicial proceeding and the DOJ is not a court. |
What is a preliminary investigation? | A preliminary investigation is an inquiry to determine whether there is sufficient ground to engender a well-founded belief that a crime has been committed and that the respondent is probably guilty thereof, warranting the filing of an information in court. |
Is the DOJ considered a quasi-judicial body during preliminary investigations? | No, the DOJ is not considered a quasi-judicial body during preliminary investigations. Its role is inquisitorial, aimed at discovering persons who may be charged with a crime. |
Under what circumstances can the DOJ dismiss a petition for review? | The DOJ may dismiss a petition for review motu proprio if there is no showing of any reversible error or if the petition is patently without merit or intended for delay. |
What is the significance of Sections 7 and 12 of the NPS Rule on Appeal? | Sections 7 and 12 outline the grounds and procedures for the DOJ Secretary to dismiss or take action on a petition for review, providing a framework for the exercise of review power. |
Can courts interfere with a prosecutor’s findings during a preliminary investigation? | Courts generally do not interfere with a prosecutor’s findings unless there is a grave abuse of discretion, respecting the prosecutor’s role in determining probable cause. |
What was the basis for the perjury complaint against Atty. Odchigue-Bondoc? | The perjury complaint was based on statements in Atty. Odchigue-Bondoc’s counter-affidavit in an Estafa case, where she denied direct dealings with the complainant. |
This decision clarifies the scope of judicial review over DOJ resolutions in preliminary investigations, reaffirming the DOJ’s discretionary power unless a grave abuse of discretion is evident. By upholding the DOJ’s dismissal of the perjury complaint, the Supreme Court emphasizes the importance of respecting prosecutorial discretion in determining probable cause and filing criminal charges.
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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: ATTY. ALICE ODCHIGUE-BONDOC v. TAN TIONG BIO, G.R. No. 186652, October 06, 2010