EN BANC

G.R. No. 213847

August 18, 2015

JUAN PONCE ENRILE, Petitioner,

vs.
SANDIGANBAYAN (THIRD DIVISION), AND PEOPLE OF
THE PHILIPPINES, Respondents.
DECISION
BERSAMIN, J.:
The decision whether to detain or release an accused before
and during trial is ultimately an incident of the judicial power
to hear and determine his criminal case. The strength of the
Prosecution's case, albeit a good measure of the accuseds
propensity for flight or for causing harm to the public, is
subsidiary to the primary objective of bail, which is to ensure
that the accused appears at trial.1
The Case
Before the Court is the petition for certiorari filed by Senator
Juan Ponce Enrile to assail and annul the resolutions dated
July 14, 20142 and August 8, 20143 issued by the
Sandiganbayan (Third Division) in Case No. SB-14-CRM-0238,
where he has been charged with plunder along with several
others. Enrile insists that the resolutions, which respectively
denied his Motion To Fix Bail and his Motion For
Reconsideration, were issued with grave abuse of discretion
amounting to lack or excess of jurisdiction.
Antecedents
On June 5, 2014, the Office of the Ombudsman charged Enrile
and several others with plunder in the Sandiganbayan on the
basis of their purported involvement in the diversion and
misuse of appropriations under the Priority Development
Assistance Fund (PDAF).4 On June 10, 2014 and June 16,
2014, Enrile respectively filed his Omnibus Motion5 and
Supplemental Opposition,6 praying, among others, that he be
allowed to post bail should probable cause be found against
him. The motions were heard by the Sandiganbayan after the
Prosecution filed its Consolidated Opposition.7
On July 3, 2014, the Sandiganbaya n issued its resolution
denying Enriles motion, particularly on the matter of bail, on
the ground of its prematurity considering that Enrile had not
yet then voluntarily surrendered or been placed under the
custody of the law.8 Accordingly, the Sandiganbayan ordered
the arrest of Enrile.9
On the same day that the warrant for his arrest was issued,
Enrile voluntarily surrendered to Director Benjamin Magalong
of the Criminal Investigation and Detection Group (CIDG) in
Camp Crame, Quezon City, and was later on confined at the
Philippine National Police (PNP) General Hospital following his
medical examination.10
Thereafter, Enrile filed his Motion for Detention at the PNP
General Hospital ,11 and his Motion to Fix Bail ,12 both dated
July 7, 2014, which were heard by the Sandiganbayan on July
8, 2014.13 In support of the motions, Enrile argued that he
should be allowed to post bail because: (a) the Prosecution
had not yet established that the evidence of his guilt was
strong; (b) although he was charged with plunder, the penalty
as to him would only be reclusion temporal , not reclusion
perpetua ; and (c) he was not a flight risk, and his age and
physical condition must further be seriously considered.
On July 14, 2014, the Sandiganbayan issued its first assailed
resolution denying Enriles Motion to Fix Bail, disposing
thusly:

x x x [I]t is only after the prosecution shall have presented its

evidence and the Court shall have made a determination that
the evidence of guilt is not strong against accused Enrile can
he demand bail as a matter of right. Then and only then will
the Court be duty-bound to fix the amount of his bail.
To be sure, no such determination has been made by the
Court. In fact, accused Enrile has not filed an application for
bail. Necessarily, no bail hearing can even commence. It is
thus exceedingly premature for accused Enrile to ask the
Court to fix his bail.
Accused Enrile next argues that the Court should grant him
bail because while he is charged with plunder, "the maximum
penalty that may be possibly imposed on him is reclusion
temporal, not reclusion perpetua." He anchors this claim on
Section 2 of R.A. No. 7080, as amended, and on the
allegation that he is over seventy (70) years old and that he
voluntarily surrendered. "Accordingly, it may be said that the
crime charged against Enrile is not punishable by reclusion
perpetua, and thus bailable."
The argument has no merit.
x x x [F]or purposes of bail, the presence of mitigating
circumstance/s is not taken into consideration. These
circumstances will only be appreciated in the imposition of the
proper penalty after trial should the accused be found guilty
of the offense charged. x x x
Lastly, accused Enrile asserts that the Court should already fix
his bail because he is not a flight risk and his physical
condition must also be seriously considered by the Court.
Admittedly, the accuseds age, physical condition and his
being a flight risk are among the factors that are considered
in fixing a reasonable amount of bail. However, as explained
above, it is premature for the Court to fix the amount of bail
without an anterior showing that the evidence of guilt against
accused Enrile is not strong.
WHEREFORE, premises considered, accused Juan Ponce
Enriles Motion to Fix Bail dated July 7, 2014 is DENIED for
lack of merit.
SO ORDERED.14
On August 8, 2014, the Sandiganbayan issued it s second
assailed resolution to deny Enriles motion for reconsideration
filed vis--vis the July 14, 2014 resolution.15
Enrile raises the following grounds in support of his petition
for certiorari , namely:
A. Before judgment of the Sandiganbayan,
Enrile is bailable as a matter of right. Enrile
may be deemed to fall within the exception
only upon concurrence of two (2)
circumstances: (i) where the offense is
punishable by reclusion perpetua, and (ii)
when evidence of guilt is strong.
B. The prosecution failed to show clearly and
conclusively that Enrile, if ever he would be
convicted, is punishable by reclusion perpetua;
hence, Enrile is entitled to bail as a matter of
right.
C. The prosecution failed to show clearly and
conclusively that evidence of Enriles guilt (if
ever) is strong; hence, Enrile is entitled to bail
as a matter of right.

D. At any rate, Enrile may be bailable as he is

not a flight risk.16
Enrile claims that before judgment of conviction, an accused
is entitled to bail as matter of right; th at it is the duty and
burden of the Prosecution to show clearly and conclusively
that Enrile comes under the exception and cannot be
excluded from enjoying the right to bail; that the Prosecution
has failed to establish that Enrile, if convicted of plunder, is
punishable by reclusion perpetua considering the presence of
two mitigating circumstances his age and his voluntary
surrender; that the Prosecution has not come forward with
proof showing that his guilt for the crime of plunder is strong;
and that he should not be considered a flight risk taking into
account that he is already over the age of 90, his medical
condition, and his social standing.
In its Comment ,17 the Ombudsman contends that Enriles
right to bail is discretionary as he is charged with a capital
offense; that to be granted bail, it is mandatory that a bail
hearing be conducted to determine whether there is strong
evidence of his guilt, or the lack of it; and that entitlement to
bail considers the imposable penalty, regardless of the
attendant circumstances.
Ruling of the Court
The petition for certiorari is meritorious.
1.
Bail protects the right of the accused to
due process and to be presumed innocent
In all criminal prosecutions, the accused shall be presumed
innocent until the contrary is proved.18 The presumption of
innocence is rooted in the guarantee of due process, and is
safeguarded by the constitutional right to be released on
bail,19 and further binds the court to wait until after trial to
impose any punishment on the accused.20
It is worthy to note that bail is not granted to prevent the
accused from committing additional crimes.[[21] The purpose
of bail is to guarantee the appearance of the accused at the
trial, or whenever so required by the trial court. The amount
of bail should be high enough to assure the presence of the
accused when so required, but it should be no higher than is
reasonably calculated to fulfill this purpose.22 Thus, bail acts
as a reconciling mechanism to accommodate both the
accuseds interest in his provisional liberty before or during
the trial, and the societys interest in assuring the accuseds
presence at trial.23
2.
Bail may be granted as a
matter of right or of discretion
The right to bail is expressly afforded by Section 13, Article
III (Bill of Rights) of the Constitution, viz.:
x x x 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.
This constitutional provision is repeated in Section 7, Rule
11424 of the Rules of Court , as follows:
Section 7. Capital offense or an offense punishable by
reclusion perpetua or life imprisonment, not bailable. No
person charged with a capital offense, or an offense
punishable by reclusion perpetua or life imprisonment, shall

be admitted to bail when evidence of guilt is strong,

regardless of the stage of the criminal prosecution.
A capital offense in the context of the rule refers to an offense
that, under the law existing at the time of its commission and
the application for admission to bail, may be punished with
death.25
The general rule is, therefore, that any person, before being
convicted of any criminal offense, shall be bailable, unless he
is charged with a capital offense, or with an offense
punishable with reclusion perpetua or life imprisonment, and
the evidence of his guilt is strong. Hence, from the moment
he is placed under arrest, or is detained or restrained by the
officers of the law, he can claim the guarantee of his
provisional liberty under the Bill of Rights, and he retains his
right to bail unless he is charged with a capital offense, or
with an offense punishable with reclusion perpetua or life
imprisonment, and the evidence of his guilt is strong.26 Once
it has been established that the evidence of guilt is strong, no
right to bail shall be recognized.27
As a result, all criminal cases within the competence of the
Metropolitan Trial Court, Municipal Trial Court, Municipal Trial
Court in Cities, or Municipal Circuit Trial Court are bailable as
matter of right because these courts have no jurisdiction to
try capital offenses, or offenses punishable with reclusion
perpetua or life imprisonment. Likewise, bail is a matter of
right prior to conviction by the Regional Trial Court (RTC) for
any offense not punishable by death, reclusion perpetua , or
life imprisonment, or even prior to conviction for an offense
punishable by death, reclusion perpetua , or life imprisonment
when evidence of guilt is not strong.28
On the other hand, the granting of bail is discretionary: (1)
upon conviction by the RTC of an offense not punishable by
death, reclusion perpetua or life imprisonment;29 or (2) if the
RTC has imposed a penalty of imprisonment exceeding six
years, provided none of the circumstances enumerated under
paragraph 3 of Section 5, Rule 114 is present, as follows:
(a) That he is a recidivist, quasi-recidivist, or
habitual delinquent, or has committed the crime
aggravated by the circumstance of reiteration;
(b) That he has previously escaped from legal
confinement, evaded sentence, or violated the
conditions of his bail without valid justification;
(c) That he committed the offense while under
probation, parole, or conditional pardon;
(d) That the circumstances of hi s case indicate the
probability of flight if released on bail; or
(e) That there is undue risk that he may commit
another crime during the pendency of the appeal.
3.
Admission to bail in offenses punished
by death, or life imprisonment, or reclusion
perpetua is subject to judicial discretion
For purposes of admission to bail, the determination of
whether or not evidence of guilt is strong in criminal cases
involving capital offenses, or offenses punishable with
reclusion perpetua or life imprisonment lies within the
discretion of the trial court. But, as the Court has held in
Concerned Citizens v. Elma ,30 "such discretion may be
exercised only after the hearing called to ascertain the degree
of guilt of the accused for the purpose of whether or not he
should be granted provisional liberty." It is axiomatic,
therefore, that bail cannot be allowed when its grant is a
matter of discretion on the part of the trial court unless there

has been a hearing with notice to the Prosecution.31 The

indispensability of the hearing with notice has been aptly
explained in Aguirre v. Belmonte, viz. :32
x x x Even before its pronouncement in the Lim case, this
Court already ruled in People vs. Dacudao, etc., et al. that a
hearing is mandatory before bail can be granted to an
accused who is charged with a capital offense, in this wise:
The respondent court acted irregularly in granting bail in a
murder case without any hearing on the motion asking for it,
without bothering to ask the prosecution for its conformity or
comment, as it turned out later, over its strong objections.
The court granted bail on the sole basis of the complaint and
the affidavits of three policemen, not one of whom apparently
witnessed the killing. Whatever the court possessed at the
time it issued the questioned ruling was intended only for
prima facie determining whether or not there is sufficient
ground to engender a well-founded belief that the crime was
committed and pinpointing the persons who probably
committed it. Whether or not the evidence of guilt is strong
for each individual accused still has to be established unless
the prosecution submits the issue on whatever it has already
presented. To appreciate the strength or weakness of the
evidence of guilt, the prosecution must be consulted or heard.
It is equally entitled as the accused to due process.
Certain guidelines in the fixing of a bailbond call for the
presentation of evidence and reasonable opportunity for the
prosecution to refute it. Among them are the nature and
circumstances of the crime, character and reputation of the
accused, the weight of the evidence against him, the
probability of the accused appearing at the trial, whether or
not the accused is a fugitive from justice, and whether or not
the accused is under bond in other cases. (Section 6, Rule
114, Rules of Court) It is highly doubtful if the trial court can
appreciate these guidelines in an ex-parte determination
where the Fiscal is neither present nor heard.
The hearing, which may be either summary or otherwise, in
the discretion of the court, should primarily determine
whether or not the evidence of guilt against the accused is
strong. For this purpose, a summary hearing means:
x x x such brief and speedy method of receiving and
considering the evidence of guilt as is practicable and
consistent with the purpose of hearing which is merely to
determine the weight of evidence for purposes of bail. On
such hearing, the court does not sit to try the merits or to
enter into any nice inquiry as to the weight that ought to be
allowed to the evidence for or against the accused, nor will it
speculate on the outcome of the trial or on what further
evidence may be therein offered or admitted. The course of
inquiry may be left to the discretion of the court which may
confine itself to receiving such evidence as has reference to
substantial matters, avoiding unnecessary thoroughness in
the examination and cross examination.33
In resolving bail applications of the accused who is charged
with a capital offense, or an offense punishable by reclusion
perpetua or life imprisonment, the trial judge is expected to
comply with the guidelines outlined in Cortes v. Catral,34 to
wit:
1. In all cases, whether bail is a matter of right or of
discretion, notify the prosecutor of the hearing of the
application for bail or require him to submit his
recommendation (Section 18, Rule 114 of the Rules
of Court, as amended);
2. Where bail is a matter of discretion, conduct a
hearing of the application for bail regardless of
whether or not the prosecution refuses to present
evidence to show that the guilt of the accused is
strong for the purpose of enabling the court to

exercise its sound discretion; (Section 7 and 8,

supra)
3. Decide whether the guilt of the accused is strong
based on the summary of evidence of the
prosecution;
4. If the guilt of the accused is no t strong, discharge
the accused upon the approval of the bailbond
(Section 19, supra) Otherwise petition should be
denied.
3.
Enriles poor health justifies his admission to bail
We first note that Enrile has averred in his Motion to Fix Bail
the presence of two mitigating circumstances that should be
appreciated in his favor, namely: that he was already over 70
years at the time of the alleged commission of the offense,
and that he voluntarily surrendered.35
Enriles averment has been mainly uncontested by the
Prosecution, whose Opposition to the Motion to Fix Bail has
only argued that
8. As regards the assertion that the maximum possible
penalty that might be imposed upon Enrile is only reclusion
temporal due to the presence of two mitigating
circumstances, suffice it to state that the presence or absence
of mitigating circumstances is also not consideration that the
Constitution deemed worthy. The relevant clause in Section
13 is "charged with an offense punishable by." It is, therefore,
the maximum penalty provided by the offense that has
bearing and not the possibility of mitigating circumstances
being appreciated in the accuseds favor.36
Yet, we do not determine now the question of whether or not
Enriles averment on the presence of the two mitigating
circumstances could entitle him to bail despite the crime
alleged against him being punishable with reclusion
perpetua ,37 simply because the determination, being
primarily factual in context, is ideally to be made by the trial
court.
Nonetheless, in now granting Enriles petition for certiorari,
the Court is guided by the earlier mentioned principal purpose
of bail, which is to guarantee the appearance of the accused
at the trial, or whenever so required by the court. The Court
is further mindful of the Philippines responsibility in the
international community arising from the national
commitment under the Universal Declaration of Human Rights
to:
x x x uphold the fundamental human rights as well as value
the worth and dignity of every person. This commitment is
enshrined in Section II, Article II of our Constitution which
provides: "The State values the dignity of every human
person and guarantees full respect for human rights." The
Philippines, therefore, has the responsibility of protecting and
promoting the right of every person to liberty and due
process, ensuring that those detained or arrested can
participate in the proceedings before a court, to enable it to
decide without delay on the legality of the detention and
order their release if justified. In other words, the Philippine
authorities are under obligation to make available to every
person under detention such remedies which safeguard their
fundamental right to liberty. These remedies include the right
to be admitted to bail.38

This national commitment to uphold the fundamental human

rights as well as value the worth and dignity of every person
has authorized the grant of bail not only to those charged in
criminal proceedings but also to extraditees upon a clear and
convincing showing: (1 ) that the detainee will not be a flight
risk or a danger to the community; and (2 ) that there exist
special, humanitarian and compelling circumstances.39
In our view, his social and political standing and his having
immediately surrendered to the authorities upon his being
charged in court indicate that the risk of his flight or escape
from this jurisdiction is highly unlikely. His personal
disposition from the onset of his indictment for plunder,
formal or otherwise, has demonstrated his utter respect for
the legal processes of this country. We also do not ignore that
at an earlier time many years ago when he had been charged
with rebellion with murder and multiple frustrated murder, he
already evinced a similar personal disposition of respect for
the legal processes, and was granted bail during the
pendency of his trial because he was not seen as a flight
risk.40 With his solid reputation in both his public and his
private lives, his long years of public service, and historys
judgment of him being at stake, he should be granted bail.
The currently fragile state of Enriles health presents another
compelling justification for his admission to bail, but which
the Sandiganbayan did not recognize.
In his testimony in the Sandiganbayan,41 Dr. Jose C.
Gonzales, the Director of the Philippine General Hospital
(PGH), classified Enrile as a geriatric patient who was found
during the medical examinations conducted at the UP-PGH to
be suffering from the following conditions:
(1) Chronic Hypertension with fluctuating blood
pressure levels on multiple drug therapy; (Annexes
1.1, 1.2, 1.3);
(2) Diffuse atherosclerotic cardiovascular disease
composed of the following :
a. Previous history of cerebrovascular
disease with carotid and vertebral artery
disease ; (Annexes 1.4, 4.1)

b. High cholesterol levels/dyslipidemia;

c. Alpha thalassemia;
d. Gait/balance disorder;
e. Upper gastrointestinal bleeding (etiology
uncertain) in 2014;
f. Benign prostatic hypertrophy (with
documented enlarged prostate on recent
ultrasound).42
Dr. Gonzales attested that the following medical conditions,
singly or collectively, could pose significant risk s to the life of
Enrile, to wit: (1) uncontrolled hypertension, because it could
lead to brain or heart complications, including recurrence of
stroke; (2) arrhythmia, because it could lead to fatal or nonfatal cardiovascular events, especially under stressful
conditions; (3) coronary calcifications associated with
coronary artery disease, because they could indicate a future
risk for heart attack under stressful conditions; and (4)
exacerbations of ACOS, because they could be triggered by
certain circumstances (like excessive heat, humidity, dust or
allergen exposure) which could cause a deterioration in
patients with asthma or COPD.43
Based on foregoing, there is no question at all that Enriles
advanced age and ill health required special medical
attention. His confinement at the PNP General Hospital, albeit
at his own instance,44 was not even recommended by the
officer-in-charge (O IC) and the internist doctor of that
medical facility because of the limitations in the medical
support at that hospital. Their testimonies ran as follows:
JUSTICE MARTIRES:
The question is, do you feel comfortable with the continued
confinement of Senator Enrile at the Philippine National Police
Hospital?
DR. SERVILLANO:
No, Your Honor.

b. Heavy coronary artery calcifications;

(Annex 1.5)

JUSTICE MARTIRES:

c. Ankle Brachial Index suggestive of

arterial calcifications. (Annex 1.6)

Director, doctor, do you feel comfortable with the continued

confinement of Senator Enrile at the PNP Hospital ?

(3) Atrial and Ventricular Arrhythmia (irregular heart

beat) documented by Holter monitoring ; (Annexes
1.7.1, 1.7.2)

PSUPT. JOCSON:

(4) Asthma-COPD Overlap Syndrom (ACOS) and

postnasal drip syndrome; (Annexes 2.1, 2.2)

JUSTICE MARTIRES:

(5) Ophthalmology:
a. Age-related mascular degeneration,
neovascular s/p laser of the Retina, s/p
Lucentis intra-ocular injections; (Annexes
3.0, 3.1, 3.2)
b. S/p Cataract surgery with posterior
chamber intraocular lens. (Annexes 3.1,
3.2)
(6) Historical diagnoses of the following:
a. High blood sugar/diabetes on
medications;

No, Your Honor.

Why?
PSUPT. JOCSON:
Because during emergency cases, Your Honor, we cannot give
him the best.
JUSTICE MARTIRES:
At present, since you are the attending physician of the
accused, Senator Enrile, are you happy or have any fear in
your heart of the present condition of the accused vis a vis
the facilities of the hospital?
DR. SERVILLANO:

Yes, Your Honor. I have a fear.

JUSTICE MARTIRES:
That you will not be able to address in an emergency
situation?
DR. SERVILLANO:
Your Honor, in case of emergency situation we can handle it
but probably if the condition of the patient worsen, we have
no facilities to do those things, Your Honor.45
Bail for the provisional liberty of the accused, regardless of
the crime charged, should be allowed independently of the
merits of the charge, provided his continued incarceration is
clearly shown to be injurious to his health or to endanger his
life. Indeed, denying him bail despite imperiling his health and
life would not serve the true objective of preventive
incarceration during the trial.
Granting bail to Enrile on the foregoing reasons is not
unprecedented. The Court has already held in Dela Rama v.
The Peoples Court:46
x x x This court, in disposing of the first petition for certiorari,
held the following:
x x x [ U]nless allowance of bail is forbidden by law in the
particular case, the illness of the prisoner,
independently of the merits of the case, is a circumstance,
and the humanity of the law makes it a consideration which
should, regardless of the charge and the stage of the
proceeding, influence the court to exercise its discretion to
admit the prisoner to bail ;47
xxx
Considering the report of the Medical Director of the Quezon
Institute to the effect that the petitioner "is actually suffering
from minimal, early, unstable type of pulmonary tuberculosis,
and chronic, granular pharyngitis," and that in said institute
they "have seen similar cases, later progressing into advance
stages when the treatment and medicine are no longer of any
avail;" taking into consideration that the petitioners previous
petition for bail was denied by the Peoples Court on the
ground that the petitioner was suffering from quiescent and
not active tuberculosis, and the implied purpose of the
Peoples Court in sending the petitioner to the Quezon
Institute for clinical examination and diagnosis of the actual
condition of his lungs, was evidently to verify whether the
petitioner is suffering from active tuberculosis, in order to act
accordingly in deciding his petition for bail; and considering
further that the said Peoples Court has adopted and applied
the well-established doctrine cited in our above-quoted
resolution, in several cases, among them, the cases against
Pio Duran (case No. 3324) and Benigno Aquino (case No.
3527), in which the said defendants were released on bail on
the ground that they were ill and their continued confinement
in New Bilibid Prison would be injurious to their health or
endanger their life; it is evident and we consequently hold
that the Peoples Court acted with grave abuse of discretion in
refusing to re lease the petitioner on bail.48
It is relevant to observe that granting provisional liberty to
Enrile will then enable him to have his medical condition be
properly addressed and better attended to by competent
physicians in the hospitals of his choice. This will not only aid
in his adequate preparation of his defense but, more
importantly , will guarantee his appearance in court for the
trial.

On the other hand, to mark time in order to wait for the trial
to finish before a meaningful consideration of the application
for bail can be had is to defeat the objective of bail, which is
to entitle the accused to provisional liberty pending the trial.
There may be circumstances decisive of the issue of bail
whose existence is either admitted by the Prosecution, or is
properly the subject of judicial notice that the courts can
already consider in resolving the application for bail without
awaiting the trial to finish.49 The Court thus balances the
scales of justice by protecting the interest of the People
through ensuring his personal appearance at the trial, and at
the same time realizing for him the guarantees of due process
as well as to be presumed innocent until proven guilty.
Accordingly, we conclude that the Sandiganbayan arbitrarily
ignored the objective of bail to ensure the appearance of the
accused during the trial; and unwarrantedly disregarded the
clear showing of the fragile health and advanced age of Enrile.
As such, the Sandiganbayan gravely abused its discretion in
denying Enriles Motion To Fix Bail. Grave abuse of discretion,
as the ground for the issuance of the writ of certiorari ,
connotes whimsical and capricious exercise of judgment as is
equivalent to excess, or lack of jurisdiction.50 The abuse
must be so patent and gross as to amount to an evasion of a
positive duty or to a virtual refusal to perform a duty enjoined
by law, or to act at all in contemplation of law as where the
power is exercised in an arbitrary and despotic manner by
reason of passion or hostility.51 WHEREFORE, the Court
GRANTS the petition for certiorari ; ISSUES the writ of
certiorari ANNULING and SETTING ASIDE the Resolutions
issued by the Sandiganbayan (Third Division) in Case No. SB14 CRM-0238 on July 14, 2014 and August 8, 2014; ORDERS
the PROVISIONAL RELEASE of petitioner Juan Ponce Enrile in
Case No. SB-14-CRM-0238 upon posting of a cash bond of
P1,000,000.00 in the Sandiganbayan; and DIRECTS the
immediate release of petitioner Juan Ponce Enrile from
custody unless he is being detained for some other lawful
cause.
No pronouncement on costs of suit.
SO ORDERED.
LUCAS P. BERSAMIN
Associate Justice
THIRD DIVISION
G.R. No. 189122

March 17, 2010

JOSE ANTONIO LEVISTE, Petitioner,

vs.
THE COURT OF APPEALS and PEOPLE OF THE
PHILIPPINES, Respondents.
DECISION
CORONA, J.:
Bail, the security given by an accused who is in the custody of
the law for his release to guarantee his appearance before
any court as may be required,1 is the answer of the criminal
justice system to a vexing question: what is to be done with
the accused, whose guilt has not yet been proven, in the
"dubious interval," often years long, between arrest and final
adjudication?2 Bail acts as a reconciling mechanism to
accommodate both the accuseds interest in pretrial liberty
and societys interest in assuring the accuseds presence at
trial.3
Upon conviction by the Regional Trial Court of an offense not
punishable by death, reclusion perpetua or life imprisonment,
the accused who has been sentenced to prison must typically
begin serving time immediately unless, on application, he is

admitted to bail.4 An accused not released on bail is

incarcerated before an appellate court confirms that his
conviction is legal and proper. An erroneously convicted
accused who is denied bail loses his liberty to pay a debt to
society he has never owed.5 Even if the conviction is
subsequently affirmed, however, the accuseds interest in bail
pending appeal includes freedom pending judicial review,
opportunity to efficiently prepare his case and avoidance of
potential hardships of prison.6 On the other hand, society has
a compelling interest in protecting itself by swiftly
incarcerating an individual who is found guilty beyond
reasonable doubt of a crime serious enough to warrant prison
time.7 Other recognized societal interests in the denial of bail
pending appeal include the prevention of the accuseds flight
from court custody, the protection of the community from
potential danger and the avoidance of delay in punishment.8
Under what circumstances an accused may obtain bail
pending appeal, then, is a delicate balance between the
interests of society and those of the accused.9
Our rules authorize the proper courts to exercise discretion in
the grant of bail pending appeal to those convicted by the
Regional Trial Court of an offense not punishable by death,
reclusion perpetua or life imprisonment. In the exercise of
that discretion, the proper courts are to be guided by the
fundamental principle that the allowance of bail pending
appeal should be exercised not with laxity but with grave
caution and only for strong reasons, considering that the
accused has been in fact convicted by the trial court.10
The Facts
Charged with the murder of Rafael de las Alas, petitioner Jose
Antonio Leviste was convicted by the Regional Trial Court of
Makati City for the lesser crime of homicide and sentenced to
suffer an indeterminate penalty of six years and one day of
prision mayor as minimum to 12 years and one day of
reclusion temporal as maximum.11
He appealed his conviction to the Court of Appeals.12 Pending
appeal, he filed an urgent application for admission to bail
pending appeal, citing his advanced age and health condition,
and claiming the absence of any risk or possibility of flight on
his part.
The Court of Appeals denied petitioners application for bail. 13
It invoked the bedrock principle in the matter of bail pending
appeal, that the discretion to extend bail during the course of
appeal should be exercised "with grave caution and only for
strong reasons." Citing well-established jurisprudence, it ruled
that bail is not a sick pass for an ailing or aged detainee or a
prisoner needing medical care outside the prison facility. It
found that petitioner
failed to show that he suffers from ailment of such gravity
that his continued confinement during trial will permanently
impair his health or put his life in danger. x x x Notably, the
physical condition of [petitioner] does not prevent him from
seeking medical attention while confined in prison, though he
clearly preferred to be attended by his personal physician.14
For purposes of determining whether petitioners application
for bail could be allowed pending appeal, the Court of Appeals
also considered the fact of petitioners conviction. It made a
preliminary evaluation of petitioners case and made a prima
facie determination that there was no reason substantial
enough to overturn the evidence of petitioners guilt.
Petitioners motion for reconsideration was denied.15
Petitioner now questions as grave abuse of discretion the
denial of his application for bail, considering that none of the
conditions justifying denial of bail under the third paragraph
of Section 5, Rule 114 of the Rules of Court was present.
Petitioners theory is that, where the penalty imposed by the

trial court is more than six years but not more than 20 years
and the circumstances mentioned in the third paragraph of
Section 5 are absent, bail must be granted to an appellant
pending appeal.
The Issue
The question presented to the Court is this: in an application
for bail pending appeal by an appellant sentenced by the trial
court to a penalty of imprisonment for more than six years,
does the discretionary nature of the grant of bail pending
appeal mean that bail should automatically be granted absent
any of the circumstances mentioned in the third paragraph of
Section 5, Rule 114 of the Rules of Court?
Section 5, Rule 114 of the Rules of Court provides:
Sec. 5. Bail, when discretionary. Upon conviction by the
Regional Trial Court of an offense not punishable by death,
reclusion perpetua, or life imprisonment, admission to bail is
discretionary. The application for bail may be filed and acted
upon by the trial court despite the filing of a notice of appeal,
provided it has not transmitted the original record to the
appellate court. However, if the decision of the trial court
convicting the accused changed the nature of the offense
from non-bailable to bailable, the application for bail can only
be filed with and resolved by the appellate court.
Should the court grant the application, the accused may be
allowed to continue on provisional liberty during the pendency
of the appeal under the same bail subject to the consent of
the bondsman.
If the penalty imposed by the trial court is
imprisonment exceeding six (6) years, the accused
shall be denied bail, or his bail shall be cancelled upon
a showing by the prosecution, with notice to the
accused, of the following or other similar
circumstances:
(a) That he is a recidivist, quasi-recidivist, or
habitual delinquent, or has committed the
crime aggravated by the circumstance of
reiteration;
(b) That he has previously escaped from legal
confinement, evaded sentence, or violated the
conditions of his bail without a valid
justification;
(c) That he committed the offense while under
probation, parole, or conditional pardon;
(d) That the circumstances of his case indicate
the probability of flight if released on bail; or
(e) That there is undue risk that he may
commit another crime during the pendency of
the appeal.
The appellate court may, motu proprio or on motion of any
party, review the resolution of the Regional Trial Court after
notice to the adverse party in either case. (emphasis
supplied)
Petitioner claims that, in the absence of any of the
circumstances mentioned in the third paragraph of Section 5,
Rule 114 of the Rules of Court, an application for bail by an
appellant sentenced by the Regional Trial Court to a penalty of
more than six years imprisonment should automatically be
granted.

Petitioners stance is contrary to fundamental considerations

of procedural and substantive rules.

discretion in a careless manner but followed doctrinal rulings

of this Court.

Basic Procedural Concerns Forbid Grant of Petition

At best, petitioner only points out the Court of Appeals

erroneous application and interpretation of Section 5, Rule
114 of the Rules of Court. However, the extraordinary writ of
certiorari will not be issued to cure errors in proceedings or
erroneous conclusions of law or fact.21 In this connection, Lee
v. People22 is apropos:

Petitioner filed this special civil action for certiorari under Rule
65 of the Rules of Court to assail the denial by the Court of
Appeals of his urgent application for admission to bail pending
appeal. While the said remedy may be resorted to challenge
an interlocutory order, such remedy is proper only where the
interlocutory order was rendered without or in excess of
jurisdiction or with grave abuse of discretion amounting to
lack or excess of jurisdiction.16
Other than the sweeping averment that "[t]he Court of
Appeals committed grave abuse of discretion in denying
petitioners application for bail pending appeal despite the fact
that none of the conditions to justify the denial thereof under
Rule 114, Section 5 [is] present, much less proven by the
prosecution,"17 however, petitioner actually failed to establish
that the Court of Appeals indeed acted with grave abuse of
discretion. He simply relies on his claim that the Court of
Appeals should have granted bail in view of the absence of
any of the circumstances enumerated in the third paragraph
of Section 5, Rule 114 of the Rules of Court. Furthermore,
petitioner asserts that the Court of Appeals committed a
grave error and prejudged the appeal by denying his
application for bail on the ground that the evidence that he
committed a capital offense was strong.

Certiorari may not be availed of where it is not shown that

the respondent court lacked or exceeded its jurisdiction over
the case, even if its findings are not correct. Its questioned
acts would at most constitute errors of law and not abuse of
discretion correctible by certiorari.
In other words, certiorari will issue only to correct errors of
jurisdiction and not to correct errors of procedure or mistakes
in the courts findings and conclusions. An interlocutory order
may be assailed by certiorari or prohibition only when it is
shown that the court acted without or in excess of jurisdiction
or with grave abuse of discretion. However, this Court
generally frowns upon this remedial measure as regards
interlocutory orders. To tolerate the practice of allowing
interlocutory orders to be the subject of review by certiorari
will not only delay the administration of justice but will also
unduly burden the courts.23 (emphasis supplied)
Wording of Third Paragraph of Section 5, Rule 114
Contradicts Petitioners Interpretation

We disagree.
It cannot be said that the Court of Appeals issued the assailed
resolution without or in excess of its jurisdiction. One,
pending appeal of a conviction by the Regional Trial Court of
an offense not punishable by death, reclusion perpetua, or life
imprisonment, admission to bail is expressly declared to be
discretionary. Two, the discretion to allow or disallow bail
pending appeal in a case such as this where the decision of
the trial court convicting the accused changed the nature of
the offense from non-bailable to bailable is exclusively lodged
by the rules with the appellate court. Thus, the Court of
Appeals had jurisdiction to hear and resolve petitioners
urgent application for admission to bail pending appeal.
Neither can it be correctly claimed that the Court of Appeals
committed grave abuse of discretion when it denied
petitioners application for bail pending appeal. Grave abuse
of discretion is not simply an error in judgment but it is
such a capricious and whimsical exercise of judgment which is
tantamount to lack of jurisdiction.18 Ordinary abuse of
discretion is insufficient. The abuse of discretion must be
grave, that is, the power is exercised in an arbitrary or
despotic manner by reason of passion or personal hostility.19
It must be so patent and gross as to amount to evasion of
positive duty or to a virtual refusal to perform the duty
enjoined by or to act at all in contemplation of the law. In
other words, for a petition for certiorari to prosper, there must
be a clear showing of caprice and arbitrariness in the exercise
of discretion.20
Petitioner never alleged that, in denying his application for
bail pending appeal, the Court of Appeals exercised its
judgment capriciously and whimsically. No capriciousness or
arbitrariness in the exercise of discretion was ever imputed to
the appellate court. Nor could any such implication or
imputation be inferred. As observed earlier, the Court of
Appeals exercised grave caution in the exercise of its
discretion. The denial of petitioners application for bail
pending appeal was not unreasonable but was the result of a
thorough assessment of petitioners claim of ill health. By
making a preliminary appraisal of the merits of the case for
the purpose of granting bail, the court also determined
whether the appeal was frivolous or not, or whether it raised
a substantial question. The appellate court did not exercise its

The third paragraph of Section 5, Rule 114 applies to two

scenarios where the penalty imposed on the appellant
applying for bail is imprisonment exceeding six years. The
first scenario deals with the circumstances enumerated in the
said paragraph (namely, recidivism, quasi-recidivism, habitual
delinquency or commission of the crime aggravated by the
circumstance of reiteration; previous escape from legal
confinement, evasion of sentence or violation of the
conditions of his bail without a valid justification; commission
of the offense while under probation, parole or conditional
pardon; circumstances indicating the probability of flight if
released on bail; undue risk of committing another crime
during the pendency of the appeal; or other similar
circumstances) not present. The second scenario
contemplates the existence of at least one of the said
circumstances.
The implications of this distinction are discussed with
erudition and clarity in the commentary of retired Supreme
Court Justice Florenz D. Regalado, an authority in remedial
law:
Under the present revised Rule 114, the availability of bail to
an accused may be summarized in the following rules:
xxx

xxx

xxx

e. After conviction by the Regional Trial Court

wherein a penalty of imprisonment exceeding 6
years but not more than 20 years is imposed, and
not one of the circumstances stated in Sec. 5 or any
other similar circumstance is present and proved,
bail is a matter of discretion (Sec. 5);
f. After conviction by the Regional Trial Court
imposing a penalty of imprisonment exceeding 6
years but not more than 20 years, and any of the
circumstances stated in Sec. 5 or any other similar
circumstance is present and proved, no bail shall
be granted by said court (Sec. 5); x x x24 (emphasis
supplied)

Retired Court of Appeals Justice Oscar M. Herrera, another

authority in remedial law, is of the same thinking:
Bail is either a matter of right or of discretion. It is a matter
of right when the offense charged is not punishable by death,
reclusion perpetua or life imprisonment. On the other hand,
upon conviction by the Regional Trial Court of an offense not
punishable death, reclusion perpetua or life imprisonment,
bail becomes a matter of discretion.
Similarly, if the court imposed a penalty of imprisonment
exceeding six (6) years then bail is a matter of
discretion, except when any of the enumerated
circumstances under paragraph 3 of Section 5, Rule
114 is present then bail shall be denied.25 (emphasis
supplied)
In the first situation, bail is a matter of sound judicial
discretion. This means that, if none of the circumstances
mentioned in the third paragraph of Section 5, Rule 114 is
present, the appellate court has the discretion to grant or
deny bail. An application for bail pending appeal may be
denied even if the bail-negating26 circumstances in the third
paragraph of Section 5, Rule 114 are absent. In other words,
the appellate courts denial of bail pending appeal where none
of the said circumstances exists does not, by and of itself,
constitute abuse of discretion.
On the other hand, in the second situation, the appellate
court exercises a more stringent discretion, that is, to
carefully ascertain whether any of the enumerated
circumstances in fact exists. If it so determines, it has no
other option except to deny or revoke bail pending appeal.
Conversely, if the appellate court grants bail pending appeal,
grave abuse of discretion will thereby be committed.
Given these two distinct scenarios, therefore, any application
for bail pending appeal should be viewed from the perspective
of two stages: (1) the determination of discretion stage,
where the appellate court must determine whether any of the
circumstances in the third paragraph of Section 5, Rule 114 is
present; this will establish whether or not the appellate court
will exercise sound discretion or stringent discretion in
resolving the application for bail pending appeal and (2) the
exercise of discretion stage where, assuming the appellants
case falls within the first scenario allowing the exercise of
sound discretion, the appellate court may consider all relevant
circumstances, other than those mentioned in the third
paragraph of Section 5, Rule 114, including the demands of
equity and justice;27 on the basis thereof, it may either allow
or disallow bail.
On the other hand, if the appellants case falls within the
second scenario, the appellate courts stringent discretion
requires that the exercise thereof be primarily focused on the
determination of the proof of the presence of any of the
circumstances that are prejudicial to the allowance of bail.
This is so because the existence of any of those
circumstances is by itself sufficient to deny or revoke bail.
Nonetheless, a finding that none of the said
circumstances is present will not automatically result in
the grant of bail. Such finding will simply authorize the
court to use the less stringent sound discretion
approach.
Petitioner disregards the fine yet substantial distinction
between the two different situations that are governed by the
third paragraph of Section 5, Rule 114. Instead, petitioner
insists on a simplistic treatment that unduly dilutes the import
of the said provision and trivializes the established policy
governing the grant of bail pending appeal.
In particular, a careful reading of petitioners arguments
reveals that it interprets the third paragraph of Section 5,
Rule 114 to cover all situations where the penalty imposed

by the trial court on the appellant is imprisonment exceeding

six years. For petitioner, in such a situation, the grant of bail
pending appeal is always subject to limited discretion, that is,
one restricted to the determination of whether any of
the five bail-negating circumstances exists. The
implication of this position is that, if any such circumstance is
present, then bail will be denied. Otherwise, bail will be
granted pending appeal.
Petitioners theory therefore reduces the appellate court into a
mere fact-finding body whose authority is limited to
determining whether any of the five circumstances mentioned
in the third paragraph of Section 5, Rule 114 exists. This
unduly constricts its "discretion" into merely filling out the
checklist of circumstances in the third paragraph of Section 5,
Rule 114 in all instances where the penalty imposed by the
Regional Trial Court on the appellant is imprisonment
exceeding six years. In short, petitioners interpretation
severely curbs the discretion of the appellate court by
requiring it to determine a singular factual issue whether
any of the five bail-negating circumstances is present.
However, judicial discretion has been defined as "choice." 28
Choice occurs where, between "two alternatives or among a
possibly infinite number (of options)," there is "more than one
possible outcome, with the selection of the outcome left to
the decision maker."29 On the other hand, the establishment
of a clearly defined rule of action is the end of discretion.30
Thus, by severely clipping the appellate courts discretion and
relegating that tribunal to a mere fact-finding body in
applications for bail pending appeal in all instances where the
penalty imposed by the trial court on the appellant is
imprisonment exceeding six years, petitioners theory
effectively renders nugatory the provision that "upon
conviction by the Regional Trial Court of an offense not
punishable by death, reclusion perpetua, or life imprisonment,
admission to bail is discretionary."
The judicial discretion granted to the proper court (the Court
of Appeals in this case) to rule on applications for bail pending
appeal must necessarily involve the exercise of judgment on
the part of the court. The court must be allowed reasonable
latitude to express its own view of the case, its appreciation
of the facts and its understanding of the applicable law on the
matter.31 In view of the grave caution required of it, the court
should consider whether or not, under all circumstances, the
accused will be present to abide by his punishment if his
conviction is affirmed.32 It should also give due regard to any
other pertinent matters beyond the record of the particular
case, such as the record, character and reputation of the
applicant,33 among other things. More importantly, the
discretion to determine allowance or disallowance of bail
pending appeal necessarily includes, at the very least, an
initial determination that the appeal is not frivolous but raises
a substantial question of law or fact which must be
determined by the appellate court.34 In other words, a
threshold requirement for the grant of bail is a showing that
the appeal is not pro forma and merely intended for delay but
presents a fairly debatable issue.35 This must be so;
otherwise, the appellate courts will be deluged with frivolous
and time-wasting appeals made for the purpose of taking
advantage of a lenient attitude on bail pending appeal. Even
more significantly, this comports with the very strong
presumption on appeal that the lower courts exercise of
discretionary power was sound,36 specially since the rules on
criminal procedure require that no judgment shall be reversed
or modified by the Court of Appeals except for substantial
error.37
Moreover, to limit the bail-negating circumstances to the five
situations mentioned in the third paragraph of Section 5, Rule
114 is wrong. By restricting the bail-negating circumstances
to those expressly mentioned, petitioner applies the expressio
unius est exclusio alterius38 rule in statutory construction.
However, the very language of the third paragraph of Section
5, Rule 114 contradicts the idea that the enumeration of the

five situations therein was meant to be exclusive. The

provision categorically refers to "the following or other
similar circumstances." Hence, under the rules, similarly
relevant situations other than those listed in the third
paragraph of Section 5, Rule 114 may be considered in the
allowance, denial or revocation of bail pending appeal.
Finally, laws and rules should not be interpreted in such a way
that leads to unreasonable or senseless consequences. An
absurd situation will result from adopting petitioners
interpretation that, where the penalty imposed by the trial
court is imprisonment exceeding six years, bail ought to be
granted if none of the listed bail-negating circumstances
exists. Allowance of bail pending appeal in cases where the
penalty imposed is more than six years of imprisonment will
be more lenient than in cases where the penalty imposed
does not exceed six years. While denial or revocation of bail
in cases where the penalty imposed is more than six years
imprisonment must be made only if any of the five bailnegating conditions is present, bail pending appeal in cases
where the penalty imposed does not exceed six years
imprisonment may be denied even without those conditions.
Is it reasonable and in conformity with the dictates of justice
that bail pending appeal be more accessible to those
convicted of serious offenses, compared to those convicted of
less serious crimes?
Petitioners Theory Deviates from History And Evolution
of Rule on Bail Pending Appeal
Petitioners interpretation deviates from, even radically alters,
the history and evolution of the provisions on bail pending
appeal.
The relevant original provisions on bail were provided under
Sections 3 to 6, Rule 110 of the 1940 Rules of Criminal
Procedure:
Sec. 3. Offenses less than capital before conviction
by the Court of First Instance. After judgment by
a municipal judge and before conviction by the Court
of First Instance, the defendant shall be admitted to
bail as of right.
Sec. 4. Non-capital offenses after conviction by the
Court of First Instance. After conviction by the
Court of First Instance, defendant may, upon
application, be bailed at the discretion of the court.
Sec. 5. Capital offense defined. A capital offense,
as the term is used in this rule, is an offense which,
under the law existing at the time of its commission,
and at the time of the application to be admitted to
bail, may be punished by death.
Sec. 6. Capital offense not bailable. No person in
custody for the commission of a capital offense shall
be admitted to bail if the evidence of his guilt is
strong.
The aforementioned provisions were reproduced as Sections 3
to 6, Rule 114 of the 1964 Rules of Criminal Procedure and
then of the 1985 Rules of Criminal Procedure. They were
modified in 1988 to read as follows:
Sec. 3. Bail, a matter of right; exception. All
persons in custody, shall before final conviction be
entitled to bail as a matter of right, except those
charged with a capital offense or an offense which,
under the law at the time of its commission and at
the time of the application for bail, is punishable by
reclusion perpetua, when evidence of guilt is strong.

Sec. 4. Capital offense, defined. A capital offense,

as the term is used in this Rules, is an offense which,
under the law existing at the time of its commission,
and at the time of the application to be admitted to
bail, may be punished by death. (emphasis supplied)
The significance of the above changes was clarified in
Administrative Circular No. 2-92 dated January 20, 1992 as
follows:
The basic governing principle on the right of the accused to
bail is laid down in Section 3 of Rule 114 of the 1985 Rules on
Criminal Procedure, as amended, which provides:
Sec. 3. Bail, a matter of right; exception. All persons in
custody, shall before final conviction, be entitled to bail as a
matter of right, except those charged with a capital offense or
an offense which, under the law at the time of its commission
and at the time of the application for bail, is punishable by
reclusion perpetua, when evidence of guilt is strong.
Pursuant to the aforecited provision, an accused who is
charged with a capital offense or an offense punishable by
reclusion perpetua, shall no longer be entitled to bail as a
matter of right even if he appeals the case to this Court since
his conviction clearly imports that the evidence of his guilt of
the offense charged is strong.
Hence, for the guidelines of the bench and bar with respect to
future as well as pending cases before the trial courts, this
Court en banc lays down the following policies concerning the
effectivity of the bail of the accused, to wit:
1) When an accused is charged with an offense
which under the law existing at the time of its
commission and at the time of the application for bail
is punishable by a penalty lower than reclusion
perpetua and is out on bail, and after trial is
convicted by the trial court of the offense charged or
of a lesser offense than that charged in the
complaint or information, he may be allowed to
remain free on his original bail pending the
resolution of his appeal, unless the proper court
directs otherwise pursuant to Rule 114, Sec. 2 (a) of
the Rules of Court, as amended;
2) When an accused is charged with a capital offense
or an offense which under the law at the time of its
commission and at the time of the application for bail
is punishable by reclusion perpetua and is out on
bail, and after trial is convicted by the trial court of a
lesser offense than that charged in the complaint or
information, the same rule set forth in the preceding
paragraph shall be applied;
3) When an accused is charged with a capital offense
or an offense which under the law at the time of its
commission and at the time of the application for bail
is punishable by reclusion perpetua and is out on bail
and after trial is convicted by the trial court of the
offense charged, his bond shall be cancelled and the
accused shall be placed in confinement pending
resolution of his appeal.
As to criminal cases covered under the third rule abovecited,
which are now pending appeal before his Court where the
accused is still on provisional liberty, the following rules are
laid down:

1) This Court shall order the bondsman to surrender

the accused within ten (10) days from notice to the
court of origin. The bondsman thereupon, shall
inform this Court of the fact of surrender, after
which, the cancellation of the bond shall be ordered
by this Court;
2) The RTC shall order the transmittal of the accused
to the National Bureau of Prisons thru the Philippine
National Police as the accused shall remain under
confinement pending resolution of his appeal;
3) If the accused-appellant is not surrendered within
the aforesaid period of ten (10) days, his bond shall
be forfeited and an order of arrest shall be issued by
this Court. The appeal taken by the accused shall
also be dismissed under Section 8, Rule 124 of the
Revised Rules of Court as he shall be deemed to
have jumped his bail. (emphasis supplied)
Amendments were further introduced in Administrative
Circular No. 12-94 dated August 16, 1994 which brought
about important changes in the said rules as follows:
SECTION 4. Bail, a matter of right. All persons in custody
shall: (a) before or after conviction by the Metropolitan Trial
Court, Municipal Trial Court, Municipal Trial Court in Cities and
Municipal Circuit Trial Court, and (b) before conviction by the
Regional Trial Court of an offense not punishable by death,
reclusion perpetua or life imprisonment, be admitted to bail
as a matter of right, with sufficient sureties, or be released on
recognizance as prescribed by law of this Rule. (3a)
SECTION 5. Bail, when discretionary. Upon conviction by
the Regional Trial Court of an offense not punishable by
death, reclusion perpetua or life imprisonment, the court, on
application, may admit the accused to bail.
The court, in its discretion, may allow the accused to continue
on provisional liberty under the same bail bond during the
period of appeal subject to the consent of the bondsman.
If the court imposed a penalty of imprisonment exceeding six
(6) years but not more than twenty (20) years, the accused
shall be denied bail, or his bail previously granted shall be
cancelled, upon a showing by the prosecution, with notice to
the accused, of the following or other similar circumstances:
(a) That the accused is a recidivist, quasi-recidivist,
or habitual delinquent, or has committed the crime
aggravated by the circumstance of reiteration;
(b) That the accused is found to have previously
escaped from legal confinement, evaded sentence or
has violated the conditions of his bail without valid
justification;
(c) That the accused committed the offense while on
probation, parole, under conditional pardon;
(d) That the circumstances of the accused or his case
indicate the probability of flight if released on bail; or
(e) That there is undue risk that during the pendency
of the appeal, the accused may commit another
crime.
The appellate court may review the resolution of the Regional
Trial Court, on motion and with notice to the adverse party.
(n)
SECTION 6. Capital offense, defined. A capital offense, as
the term is used in these Rules, is an offense which, under

the law existing at the time of its commission and at the time
of the application to be admitted to bail, maybe punished with
death. (4)
SECTION 7. Capital offense or an offense punishable by
reclusion perpetua or life imprisonment, not bailable. No
person charged with a capital offense, or an offense
punishable by reclusion perpetua or life imprisonment, when
evidence of guilt is strong, shall be admitted to bail regardless
of the stage of the criminal prosecution. (emphasis supplied)
The above amendments of Administrative Circular No. 12-94
to Rule 114 were thereafter amended by A.M. No. 00-5-03-SC
to read as they do now.
The development over time of these rules reveals an
orientation towards a more restrictive approach to bail
pending appeal. It indicates a faithful adherence to the
bedrock principle, that is, bail pending appeal should be
allowed not with leniency but with grave caution and only for
strong reasons.
The earliest rules on the matter made all grants of bail after
conviction for a non-capital offense by the Court of First
Instance (predecessor of the Regional Trial Court)
discretionary. The 1988 amendments made applications for
bail pending appeal favorable to the appellant-applicant. Bail
before final conviction in trial courts for non-capital offenses
or offenses not punishable by reclusion perpetua was a
matter of right, meaning, admission to bail was a matter of
right at any stage of the action where the charge was not for
a capital offense or was not punished by reclusion perpetua.39
The amendments introduced by Administrative Circular No.
12-94 made bail pending appeal (of a conviction by the
Regional Trial Court of an offense not punishable by death,
reclusion perpetua or life imprisonment) discretionary. Thus,
Administrative Circular No. 12-94 laid down more stringent
rules on the matter of post-conviction grant of bail.
A.M. No. 00-5-03-SC modified Administrative Circular No. 1294 by clearly identifying which court has authority to act on
applications for bail pending appeal under certain conditions
and in particular situations. More importantly, it reiterated the
"tough on bail pending appeal" configuration of Administrative
Circular No. 12-94. In particular, it amended Section 3 of the
1988 Rules on Criminal Procedure which entitled the accused
to bail as a matter of right before final conviction.40 Under the
present rule, bail is a matter of discretion upon conviction by
the Regional Trial Court of an offense not punishable by
death, reclusion perpetua or life imprisonment. Indeed,
pursuant to the "tough on bail pending appeal" policy, the
presence of bail-negating conditions mandates the denial or
revocation of bail pending appeal such that those
circumstances are deemed to be as grave as conviction by the
trial court for an offense punishable by death, reclusion
perpetua or life imprisonment where bail is prohibited.
Now, what is more in consonance with a stringent standards
approach to bail pending appeal? What is more in conformity
with an ex abundante cautelam view of bail pending appeal?
Is it a rule which favors the automatic grant of bail in the
absence of any of the circumstances under the third
paragraph of Section 5, Rule 114? Or is it a rule that
authorizes the denial of bail after due consideration of all
relevant circumstances, even if none of the circumstances
under the third paragraph of Section 5, Rule 114 is present?
The present inclination of the rules on criminal procedure to
frown on bail pending appeal parallels the approach adopted
in the United States where our original constitutional and
procedural provisions on bail emanated.41 While this is of
course not to be followed blindly, it nonetheless shows that
our treatment of bail pending appeal is no different from that
in other democratic societies.

In our jurisdiction, the trend towards a strict attitude towards

the allowance of bail pending appeal is anchored on the
principle that judicial discretion particularly with respect to
extending bail should be exercised not with laxity but with
caution and only for strong reasons.42 In fact, it has even
been pointed out that "grave caution that must attend the
exercise of judicial discretion in granting bail to a convicted
accused is best illustrated and exemplified in Administrative
Circular No. 12-94 amending Rule 114, Section 5."43
Furthermore, this Court has been guided by the following:
The importance attached to conviction is due to the
underlying principle that bail should be granted only where it
is uncertain whether the accused is guilty or innocent, and
therefore, where that uncertainty is removed by conviction it
would, generally speaking, be absurd to admit to bail. After a
person has been tried and convicted the presumption of
innocence which may be relied upon in prior applications is
rebutted, and the burden is upon the accused to show error in
the conviction. From another point of view it may be properly
argued that the probability of ultimate punishment is so
enhanced by the conviction that the accused is much more
likely to attempt to escape if liberated on bail than before
conviction.44 (emphasis supplied)

After conviction by the trial court, the presumption of

innocence terminates and, accordingly, the constitutional right
to bail ends.46 From then on, the grant of bail is subject to
judicial discretion. At the risk of being repetitious, such
discretion must be exercised with grave caution and only for
strong reasons. Considering that the accused was in fact
convicted by the trial court, allowance of bail pending appeal
should be guided by a stringent-standards approach. This
judicial disposition finds strong support in the history and
evolution of the rules on bail and the language of Section 5,
Rule 114 of the Rules of Court. It is likewise consistent with
the trial courts initial determination that the accused should
be in prison. Furthermore, letting the accused out on bail
despite his conviction may destroy the deterrent effect of our
criminal laws. This is especially germane to bail pending
appeal because long delays often separate sentencing in the
trial court and appellate review. In addition, at the postconviction stage, the accused faces a certain prison sentence
and thus may be more likely to flee regardless of bail bonds
or other release conditions. Finally, permitting bail too freely
in spite of conviction invites frivolous and time-wasting
appeals which will make a mockery of our criminal justice
system and court processes.
WHEREFORE, the petition is hereby DISMISSED.

As a matter of fact, endorsing the reasoning quoted above

and relying thereon, the Court declared in Yap v. Court of
Appeals45 (promulgated in 2001 when the present rules were
already effective), that denial of bail pending appeal is "a
matter of wise discretion."

The Court of Appeals is hereby directed to resolve and decide,

on the merits, the appeal of petitioner Jose Antonio Leviste
docketed as CA-G.R. CR No. 32159, with dispatch.

A Final Word

SO ORDERED.

Section 13, Article II of the Constitution provides:

RENATO C. CORONA
Associate Justice

SEC. 13. 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. x x x (emphasis supplied)1avvphi1

Costs against petitioner.