G.R. Nos. 14702627.September 11, 2009.

CAROLINA R. JAVIER, petitioner, vs. THE FIRST

DIVISION OF THE SANDIGANBAYAN and the PEOPLE
OF THE PHILIPPINES, respondents.
Criminal Procedure; Motions to Quash; Wellestablished is the
rule that when a motion to quash in a criminal case is denied, the
remedy is not a petition for certiorari, but for petitioners to go to
trial, without prejudice to reiterating the special defenses invoked
in their motion to quashremedial measures as regards
interlocutory orders, such as a motion to quash, are frowned upon
and often dismissed.A motion to quash an Information is the
mode by which an accused assails the validity of a criminal
complaint or Information filed against him for insufficiency on its
face in point of law, or for defects which are apparent in the face
of the Information. Wellestablished is the rule that when a
motion to quash in a criminal case is denied, the remedy is not a
petition for certiorari, but for petitioners to go to trial, without
prejudice to reiterating the special defenses invoked in their
motion to quash. Remedial measures as regards interlocutory
orders, such as a motion to quash, are frowned upon and often
dismissed. The evident reason for this rule is to avoid multiplicity
of appeals in a single action. The above general rule, however
admits of several exceptions, one of which is when the court, in
denying the motion to dismiss or motion to quash, acts without or
in excess of jurisdiction or with grave abuse of discretion, then
certiorari or prohibition lies. The reason is that it would be unfair
to require the defendant or accused to undergo the ordeal and
expense of a trial if the court has no jurisdiction over the subject
matter or offense, or is not the court of proper venue, or if the
denial of the motion to dismiss or motion to quash is made with
grave abuse of discretion or a whimsical and capricious exercise of
judgment. In such cases, the ordinary remedy of appeal cannot be
plain and adequate.
Public Officers; National Book Development Board (NBDB);
Book Publishing Industry Development Act (Republic Act No.

8047); Words and Phrases; A public office is the right, authority

and duty, created and conferred by law, by which, for a given
period, either
_______________
*THIRD DIVISION.

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Javier vs. Sandiganbayan, First Division

fixed by law or enduring at the pleasure of the creating power, an

individual is invested with some portion of the sovereign functions
of the government, to be exercised by him for the benefit of the
public.The NBDB is the government agency mandated to
develop and support the Philippine book publishing industry. It is
a statutory government agency created by R.A. No. 8047, which
was enacted into law to ensure the full development of the book
publishing industry as well as for the creation of organization
structures to implement the said policy. To achieve this end, the
Governing Board of the NBDB was created to supervise the
implementation. The Governing Board was vested with powers
and functions, to wit: x x x A perusal of the above powers and
functions leads us to conclude that they partake of the nature of
public functions. A public office is the right, authority and duty,
created and conferred by law, by which, for a given period, either
fixed by law or enduring at the pleasure of the creating power, an
individual is invested with some portion of the sovereign
functions of the government, to be exercised by him for the
benefit of the public. The individual so invested is a public
officer.
Same; Same; Same; The fact that the accused was appointed
as member of the National Book Development Board (NBDB) from
the public sector and not from the other branches or agencies of the
government does not take her position outside the meaning of a
public office; The purpose of the law for appointing members from
the private sector is to ensure that they are also properly
represented in the implementation of government objectives to
cultivate the book publishing industry.Notwithstanding that
petitioner came from the private sector to sit as a member of the
NBDB, the law invested her with some portion of the sovereign

functions of the government, so that the purpose of the

government is achieved. In this case, the government aimed to
enhance the book publishing industry as it has a significant role
in the national development. Hence, the fact that she was
appointed from the public sector and not from the other branches
or agencies of the government does not take her position outside
the meaning of a public office. She was appointed to the
Governing Board in order to see to it that the purposes for which
the law was enacted are achieved. The Governing Board acts
collectively and carries out its mandate as one body. The purpose
of the law for appointing members from the private sector is to
ensure that they
326

326

SUPREME COURT REPORTS ANNOTATED

Javier vs. Sandiganbayan, First Division

are also properly represented in the implementation of

government objectives to cultivate the book publishing industry.
Same; Same; Same; AntiGraft and Corrupt Practices Act
(Republic Act No. 3019); Words and Phrases; The Court is not
unmindful of the definition of a public officer pursuant to the Anti
Graft Law, which provides that a public officer includes elective
and appointive officials and employees, permanent or temporary,
whether in the classified or unclassified or exempt service receiving
compensation, even nominal, from the government; Under the
AntiGraft Law, the nature of ones appointment, and whether the
compensation one receives from the government is only nominal, is
immaterial because the person so elected or appointed is still
considered a public officer.The Court is not unmindful of the
definition of a public officer pursuant to the AntiGraft Law,
which provides that a public officer includes elective and
appointive officials and employees, permanent or temporary,
whether in the classified or unclassified or exempt service
receiving compensation, even nominal, from the government.
Thus, pursuant to the AntiGraft Law, one is a public officer if one
has been elected or appointed to a public office. Petitioner was
appointed by the President to the Governing Board of the NDBD.
Though her term is only for a year that does not make her private
person exercising a public function. The fact that she is not
receiving a monthly salary is also of no moment. Section 7, R.A.
No. 8047 provides that members of the Governing Board shall
receive per diem and such allowances as may be authorized for

every meeting actually attended and subject to pertinent laws,

rules and regulations. Also, under the AntiGraft Law, the nature
of ones appointment, and whether the compensation one receives
from the government is only nominal, is immaterial because the
person so elected or appointed is still considered a public officer.
Same; Same; Same; Same; Same; The Revised Penal Code
defines a public officer as any person who, by direct provision of
the law, popular election, popular election or appointment by
competent authority, shall take part in the performance of public
functions in the Government of the Philippine Islands, or shall
perform in said Government or in any of its branches public duties
as an employee, agent, or subordinate official, of any rank or
classes, shall be deemed to be a public officer.The Revised Penal
Code defines a public officer as any person who, by direct
provision of the law, popular
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Javier vs. Sandiganbayan, First Division

election, popular election or appointment by competent authority,

shall take part in the performance of public functions in the
Government of the Philippine Islands, or shall perform in said
Government or in any of its branches public duties as an
employee, agent, or subordinate official, of any rank or classes,
shall be deemed to be a public officer. Where, as in this case,
petitioner performs public functions in pursuance of the objectives
of R.A. No. 8047, verily, she is a public officer who takes part in
the performance of public functions in the government whether as
an employee, agent, subordinate official, of any rank or classes. In
fact, during her tenure, petitioner took part in the drafting and
promulgation of several rules and regulations implementing R.A.
No. 8047. She was supposed to represent the country in the
canceled book fair in Spain.
Criminal Law; Double Jeopardy; Requisites; It is elementary
that for double jeopardy to attach, the case against the accused
must have been dismissed or otherwise terminated without his
express consent by a court of competent jurisdiction, upon valid
information sufficient in form and substance and the accused
pleaded to the charge.Records show that the Informations in
Criminal Case Nos. 25867 and 25898 refer to offenses penalized
by different statues, R.A. No. 3019 and RPC, respectively. It is

elementary that for double jeopardy to attach, the case against

the accused must have been dismissed or otherwise terminated
without his express consent by a court of competent jurisdiction,
upon valid information sufficient in form and substance and the
accused pleaded to the charge. In the instant case, petitioner
pleaded not guilty to the Information for violation of the Anti
Graft Law. She was not yet arraigned in the criminal case for
malversation of public funds because she had filed a motion to
quash the latter information. Double jeopardy could not,
therefore, attach considering that the two cases remain pending
before the Sandiganbayan and that herein petitioner had pleaded
to only one in the criminal cases against her. It is wellsettled that
for a claim of double jeopardy to prosper, the following requisites
must concur: (1) there is a complaint or information or other
formal charge sufficient in form and substance to sustain a
conviction; (2) the same is filed before a court of competent
jurisdiction; (3) there is a valid arraignment or plea to the
charges; and (4) the accused is convicted or acquitted or the case
is otherwise dismissed or terminated without his express consent.
The third and fourth requisites are not present in the case at bar.
238

238

SUPREME COURT REPORTS ANNOTATED

Javier vs. Sandiganbayan, First Division

SPECIAL CIVIL ACTION in the Supreme Court.

Certiorari.
The facts are stated in the opinion of the Court.
Salomon, Gonong, Dela Cruz Law Offices for petitioner.
The Solicitor General for respondent.
PERALTA,J.:
Before the Court is a petition for certiorari1 under Rule
65 of the Rules of Court filed by petitioner Carolina R.
Javier in Criminal Case Nos. 25867 and 25898, entitled
People of the Philippines, Plaintiff versus Carolina R.
Javier, Accused, seeking to nullify respondent
Sandiganbayans: (1) Order2 dated November 14, 2000 in
Criminal Case No. 25867, which denied her Motion to
Quash Information; (2) Resolution3 dated January 17, 2001
in Criminal Case No. 25898, which denied her Motion for
Reconsideration and Motion to Quash Information; and (3)
Order4 dated February 12, 2001, declaring that a motion
for reconsideration in Criminal Case No. 25898 would be

superfluous as the issues are fairly simple and

straightforward.
The factual antecedents follow.
On June 7, 1995, Republic Act (R.A.) No. 8047,5 or
otherwise known as the Book Publishing Industry
Development Act, was enacted into law. Foremost in its
policy is the States goal in promoting the continuing
development of the book publishing industry, through the
active participation of
_______________
1Rollo, pp. 324.
2Id., at p. 26.
3Id., at pp. 2728.
4Id., at pp. 2930.
5 AN ACT PROVIDING

FOR THE

DEVELOPMENT

OF THE

BOOK PUBLISHING

INDUSTRY THROUGH THE FORMULATION AND IMPLEMENTATION OF A NATIONAL BOOK

POLICY

AND A

NATIONAL BOOK DEVELOPMENT PLAN; Records, Vol. I (Crim.

Case No. 25867), pp. 101107.

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Javier vs. Sandiganbayan, First Division

the private sector, to ensure an adequate supply of

affordable, qualityproduced books for the domestic and
export market.
To achieve this purpose, the law provided for the
creation of the National Book Development Board (NBDB
or the Governing Board, for brevity), which shall be under
the administration and supervision of the Office of the
President. The Governing Board shall be composed of
eleven (11) members who shall be appointed by the
President of the Philippines, five (5) of whom shall come
from the government, while the remaining six (6) shall be
chosen from the nominees of organizations of private book
publishers, printers, writers, book industry related
activities, students and the private education sector.
On February 26, 1996, petitioner was appointed to the
Governing Board as a private sector representative for a
term of one (1) year.6 During that time, she was also the
President of the Book Suppliers Association of the
Philippines (BSAP). She was on a holdover capacity in the

following year. On September 14, 1998, she was again

appointed to the same position and for the same period of
one (1) year.7 Part of her functions as a member of the
Governing Board is to attend book fairs to establish
linkages with international book publishing bodies. On
September 29, 1997, she was issued by the Office of the
President a travel authority to attend the Madrid
International Book Fair in Spain on October 812, 1997.8
Based on her itinerary of travel,9 she was paid
P139,199.0010 as her travelling expenses.
Unfortunately, petitioner was not able to attend the
scheduled international book fair.
_______________
6 Records, Vol. I (Crim. Case No. 25867), p. 90.
7 Records, Vol. I (Crim. Case No. 25867), pp. 9192.
8 Id., at p. 122.
9 Id., at p. 123.
10Per Check No. 10188AY; Id., at p 125.
330

330

SUPREME COURT REPORTS ANNOTATED

Javier vs. Sandiganbayan, First Division

On February 16, 1998, Resident Auditor Rosario T.

Martin advised petitioner to immediately return/refund her
cash advance considering that her trip was canceled.11
Petitioner, however, failed to do so. On July 6, 1998, she
was issued a Summary of Disallowances12 from which the
balance for settlement amounted to P220,349.00. Despite
said notice, no action was forthcoming from the petitioner.
On September 23, 1999, Dr. Nellie R. Apolonio, then the
Executive Director of the NBDB, filed with the
Ombudsman a complaint against petitioner for
malversation of public funds and properties. She averred
that despite the cancellation of the foreign trip, petitioner
failed to liquidate or return to the NBDB her cash advance
within sixty (60) days from date of arrival, or in this case
from the date of cancellation of the trip, in accordance with
government accounting and auditing rules and regulations.
Dr. Apolonio further charged petitioner with violation of
Republic Act (R.A.) No. 671313 for failure to file her
Statement of Assets and Liabilities.

The Ombudsman found probable cause to indict

petitioner for violation of Section 3(e) of R.A. No. 3019,14 as
amended, and recommended the filing of the corresponding
information.15 It, however, dismissed for insufficiency of
evidence, the charge for violation of R.A. No. 6713.
In an Information dated February 18, 2000, petitioner
was charged with violation of Section 3(e) of R.A. No. 3019
before the Sandiganbayan, to wit:
_______________
11Id., at p. 126.
12Id., at p. 127.
13Otherwise known as the Code of Conduct and Ethical Standards for
Public Officials and Employees.
14Otherwise known as the AntiGraft and Corrupt Practices Act.
15Resolution dated February 18, 2000; Records, Vol. I (Crim. Case No.
25867), pp. 510.
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VOL. 599, SEPTEMBER 11, 2009

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Javier vs. Sandiganbayan, First Division

That on or about October 8, 1997, or for sometime prior or
subsequent thereto, in the City of Quezon, Philippines and within
the jurisdiction of this Honorable Court, the aforenamed accused,
a public officer, being then a member of the governing Board of
the National Book Development Board (NBDB), while in the
performance of her official and administrative functions, and
acting with evident bad faith or gross inexcusable negligence, did
then and there willfully, unlawfully and criminally, without any
justifiable cause, and despite due demand by the Resident Auditor
and the Executive Director of NBDB, fail and refuse to return
and/or liquidate her cash advances intended for official travel
abroad which did not materialize, in the total amount of
P139,199.00 as of September 23, 1999, as required under EO No.
248 and Sec. 5 of COA Circular No. 97002 thereby causing
damage and undue injury to the Government.
CONTRARY TO LAW.16

The case was docketed as Criminal Case No. 25867 and

raffled to the First Division.
Meanwhile, the Commission on Audit charged petitioner
with Malversation of Public Funds, as defined and

penalized under Article 217 of the Revised Penal Code, for

not liquidating the cash advance granted to her in
connection with her supposed trip to Spain. During the
conduct of the preliminary investigation, petitioner was
required to submit her counteraffidavit but she failed to do
so. The Ombudsman found probable cause to indict
petitioner for the crime charged and recommended the
filing of the corresponding information against her.17
Thus, an Information dated February 29, 2000 was filed
before the Sandiganbayan, which was docketed as Criminal
Case No. 25898, and raffled to the Third Division, the
accusatory portion of which reads:
_______________
16Records, Vol. II (Crim. Case No. 25867), pp. 12.
17Resolution dated February 29, 2000; Records, Vol. I, (Crim Case No.
25898), pp. 48.
332

332

SUPREME COURT REPORTS ANNOTATED

Javier vs. Sandiganbayan, First Division

That on or about and during the period from October 8, 1997

to February 16, 1999, or for sometime prior or subsequent thereto,
in Quezon City, Philippines, and within the jurisdiction of this
Honorable Court, the abovenamed accused, a high ranking
officer, being a member of the Governing Board of the National
Book Development Board and as such, is accountable for the
public funds she received as cash advance in connection with her
trip to Spain from October 812, 1997, per LBP Check No. 10188
in the amount of P139,199.00, which trip did not materialize, did
then and there willfully, unlawfully and feloniously take,
malverse, misappropriate, embezzle and convert to her own
personal use and benefit the aforementioned amount of
P139,199.00, Philippine currency, to the damage and prejudice of
the government in the aforesaid amount.
CONTRARY TO LAW.18

During her arraignment in Criminal Case No. 25867,

petitioner pleaded not guilty. Thereafter, petitioner
delivered to the First Division the money subject of the
criminal cases, which amount was deposited in a special
trust account during the pendency of the criminal cases.

Meanwhile, the Third Division set a clarificatory

hearing in Criminal Case No. 25898 on May 16, 2000 in
order to determine jurisdictional issues. On June 3, 2000,
petitioner filed with the same Division a Motion for
Consolidation19 of Criminal Case No. 25898 with Criminal
Case No. 25867, pending before the First Division. On July
6, 2000, the People filed an Urgent ExParte Motion to
Admit Amended Information20 in Criminal Case No. 25898,
which was granted. Accordingly, the Amended Information
dated June 28, 2000 reads as follows:
That on or about and during the period from October 8, 1997
to February 16, 1999, or for sometime prior or subsequent thereto,
in Quezon City, Philippines, and within the jurisdiction of this
Honor
_______________
18Records, Vol. I (Crim Case No. 25898), pp. 12.
19Id., at pp. 3132.
20Id., at p. 45.
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VOL. 599, SEPTEMBER 11, 2009

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Javier vs. Sandiganbayan, First Division

able Court, the abovenamed accused, a high ranking officer,

being a member of the Governing Board of the National Book
Development Board equated to Board Member II with a salary
grade 28 and as such, is accountable for the public funds she
received as case advance in connection with her trip to Spain from
October 812, 1997, per LBP Check No. 10188 in the amount of
P139,199.00, which trip did not materialize, did then and there
willfully,
unlawfully
and
feloniously
take,
malverse,
misappropriate, embezzle and convert to her own personal use
and benefit the aforementioned amount of P139,199.00,
Philippine currency, to the damage and prejudice of the
government in the aforesaid amount.
CONTRARY TO LAW.21

In its Resolution dated October 5, 2000, the Third

Division ordered the consolidation of Criminal Case No.
25898 with Criminal Case No. 25867. 22
On October 10, 2000, petitioner filed a Motion to Quash
Information,23 averring that the Sandiganbayan has no

jurisdiction to hear Criminal Case No. 25867 as the

information did not allege that she is a public official who
is classified as Grade 27 or higher. Neither did the
information charge her as a coprincipal, accomplice or
accessory to a public officer committing an offense under
the Sandiganbayans jurisdiction. She also averred that she
is not a public officer or employee and that she belongs to
the Governing Board only as a private sector
representative under R.A. No. 8047, hence, she may not be
charged under R.A. No. 3019 before the Sandiganbayan or
under any statute which covers public officials. Moreover,
she claimed that she does not perform public functions and
is without any administrative or political power to speak of
that she is serving the private book publishing industry
by advancing their interest as participant in the
governments book development policy.
_______________
21Id., at p. 46.
22Id., at p. 52.
23Rollo, pp. 4050.
334

334

SUPREME COURT REPORTS ANNOTATED

Javier vs. Sandiganbayan, First Division

In an Order24 dated November 14, 2000, the First

Division25 denied the motion to quash with the following
disquisition:
The fact that the accused does not receive any compensation
in terms of salaries and allowances, if that indeed be the case, is
not the sole qualification for being in the government service or a
public official. The National Book Development Board is a
statutory government agency and the persons who participated
therein even if they are from the private sector, are public officers
to the extent that they are performing their duty therein as such.
Insofar as the accusation is concerned herein, it would appear
that monies were advanced to the accused in her capacity as
Director of the National Book Development Board for purposes of
official travel. While indeed under ordinary circumstances a
member of the board remains a private individual, still when that
individual is performing her functions as a member of the board

or when that person receives benefits or when the person is

supposed to travel abroad and is given government money to
effect that travel, to that extent the private sector representative
is a public official performing public functions; if only for that
reason, and not even considering situation of her being in
possession of public funds even as a private individual for which
she would also covered by provisions of the Revised Penal Code,
she is properly charged before this Court.

On November 15, 2000, the First Division accepted the

consolidation of the criminal cases against petitioner and
scheduled her arraignment on November 17, 2000, for
Criminal Case No. 25898. On said date, petitioner
manifested that she is not prepared to accept the propriety
of the accusation since it refers to the same subject matter
as that covered in Criminal Case No. 25867 for which the
Sandiganbayan gave her time to file a motion to quash. On
November 22, 2000, petitioner filed a Motion to Quash the
Information26 in Criminal Case No. 25898, by invoking her
right against double jeop
_______________
24Rollo, p. 26.
25 Composed of then Presiding Justice Francis E. Garchitorena,
Associate Justices Catalino R. Castaeda, Jr. and Gregory S. Ong.
26Id., at p. 5558.
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VOL. 599, SEPTEMBER 11, 2009

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Javier vs. Sandiganbayan, First Division

ardy. However, her motion was denied in open court. She

then filed a motion for reconsideration.
On January 17, 2001, the Sandiganbayan issued a
Resolution27 denying petitioners motion with the following
disquisition:
The accused is under the jurisdiction of this Court because
Sec. 4 (g) of P.D. 1606 as amended so provides, thus:
Sec.4.Jurisdiction.The
Sandiganbayan
shall
exercise exclusive original jurisdiction in all cases involving:
xxxx
(g)Presidents, directors or trustees, or managers of

governmentowned or controlled corporations, state

universities or educational institutions or foundations;
xxxx
The offense is officerelated because the money for her travel
abroad was given to her because of her Directorship in the
National Book Development Board.
Furthermore, there are also allegations to hold the accused
liable under Article 222 of the Revised Penal Code which reads:
Art.222.Officers included in the preceding provisions.
The provisions of this chapter shall apply to private
individuals who, in any capacity whatever, have charge of
any insular, provincial or municipal funds, revenues, or
property and to any administrator or depository of funds or
property attached , seized or deposited by public authority,
even if such property belongs to a private individual.
Likewise, the Motion to Quash the Information in Criminal
Case No. 25898 on the ground of litis pendencia is denied since in
this instance, these two Informations speak of offenses under
different statutes, i.e., R.A. No. 3019 and the Revised Penal Code,
neither of which precludes prosecution of the other.

Petitioner hinges the present petition on the ground that

the Sandiganbayan has committed grave abuse of
discretion
_______________
27Rollo, pp. 2728.
336

336

SUPREME COURT REPORTS ANNOTATED

Javier vs. Sandiganbayan, First Division

amounting to lack of jurisdiction for not quashing the two

informations charging her with violation of the AntiGraft
Law and the Revised Penal Code on malversation of public
funds. She advanced the following arguments in support of
her petition, to wit: first, she is not a public officer, and
second, she was being charged under two (2) informations,
which is in violation of her right against double jeopardy.
A motion to quash an Information is the mode by which
an accused assails the validity of a criminal complaint or
Information filed against him for insufficiency on its face in
point of law, or for defects which are apparent in the face of

the Information.28
Wellestablished is the rule that when a motion to quash
in a criminal case is denied, the remedy is not a petition for
certiorari, but for petitioners to go to trial, without
prejudice to reiterating the special defenses invoked in
their motion to quash. Remedial measures as regards
interlocutory orders, such as a motion to quash, are
frowned upon and often dismissed. The evident reason for
this rule is to avoid multiplicity of appeals in a single
action.29
The above general rule, however admits of several
exceptions, one of which is when the court, in denying the
motion to dismiss or motion to quash, acts without or in
excess of jurisdiction or with grave abuse of discretion, then
certiorari or prohibition lies. The reason is that it would be
unfair to require the defendant or accused to undergo the
ordeal and expense of a trial if the court has no jurisdiction
over the subject matter or offense, or is not the court of
proper venue, or if the denial of the motion to dismiss or
motion to quash is made with grave abuse of discretion or a
whimsical and capri
_______________
28Ariel Los Baos, et al. v. Joel Pedro, G.R. No. 173588, April 22, 2009,
586 SCRA 303.
29Serana v. Sandiganbayan, G.R. No. 162059, January 22, 2008, 542
SCRA 224.
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Javier vs. Sandiganbayan, First Division

cious exercise of judgment. In such cases, the ordinary

remedy of appeal cannot be plain and adequate.30
To substantiate her claim, petitioner maintained that
she is not a public officer and only a private sector
representative, stressing that her only function among the
eleven (11) basic purposes and objectives provided for in
Section 4, R.A. No. 8047, is to obtain priority status for
the book publishing industry. At the time of her
appointment to the NDBD Board, she was the President of
the BSAP, a book publishers association. As such, she could
not be held liable for the crimes imputed against her, and

in turn, she is outside the jurisdiction of the

Sandiganbayan.
The NBDB is the government agency mandated to
develop and support the Philippine book publishing
industry. It is a statutory government agency created by
R.A. No. 8047, which was enacted into law to ensure the
full development of the book publishing industry as well as
for the creation of organization structures to implement the
said policy. To achieve this end, the Governing Board of the
NBDB was created to supervise the implementation. The
Governing Board was vested with powers and functions, to
wit:
a)assume responsibility for carrying out and implementing
the policies, purposes and objectives provided for in this Act;
b)formulate plans and programs as well as operational
policies and guidelines for undertaking activities relative to
promoting book development, production and distribution as well
as an incentive scheme for individual authors and writers;
c)formulate policies, guidelines and mechanisms to ensure
that editors, compilers and especially authors are paid justly and
promptly royalties due them for reproduction of their works in
any form and number and for whatever purpose;
_______________
30Newsweek, Inc. v. Intermediate Appellate Court, No. L63559, May 30, 1986,
142 SCRA 171.
338

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SUPREME COURT REPORTS ANNOTATED

Javier vs. Sandiganbayan, First Division

d)conduct or contract research on the book publishing

industry including monitoring, compiling and providing data and
information of book production;
e)provide a forum for interaction among private publishers,
and, for the purpose, establish and maintain liaison will all the
segments of the book publishing industry;
f)ask the appropriate government authority to ensure
effective implementation of the National Book Development Plan;
g)promulgate rules and regulations for the implementation
of this Act in consultation with other agencies concerned, except
for Section 9 hereof on incentives for book development, which
shall be the concern of appropriate agencies involved;

h)approve, with the concurrence of the Department of

Budget and Management (DBM), the annual and supplemental
budgets submitted to it by the Executive director;
i)own, lease, mortgage, encumber or otherwise real and
personal property for the attainment of its purposes and
objectives;
j)enter into any obligation or contract essential to the proper
administration of its affairs, the conduct of its operations or the
accomplishment of its purposes and objectives;
k)receive donations, grants, legacies, devices and similar
acquisitions which shall form a trust fund of the Board to
accomplish its development plans on book publishing;
l)import books or raw materials used in book publishing
which are exempt from all taxes, customs duties and other
charges in behalf of persons and enterprises engaged in book
publishing and its related activities duly registered with the
board;
m)promulgate rules and regulations governing the matter in
which the general affairs of the Board are to be exercised and
amend, repeal, and modify such rules and regulations whenever
necessary;
n)recommend to the President of the Philippines nominees
for the positions of the Executive Officer and Deputy Executive
Officer of the Board;
o)adopt rules and procedures and fix the time and place for
holding meetings: Provided, That at least one (1) regular meeting
shall be held monthly;
339

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Javier vs. Sandiganbayan, First Division

p)conduct
studies,
seminars,
workshops,
lectures,
conferences, exhibits, and other related activities on book
development such as indigenous authorship, intellectual property
rights, use of alternative materials for printing, distribution and
others; and
q)exercise such other powers and perform such other duties
as may be required by the law.31

A perusal of the above powers and functions leads us to

conclude that they partake of the nature of public
functions. A public office is the right, authority and duty,
created and conferred by law, by which, for a given period,
either fixed by law or enduring at the pleasure of the

creating power, an individual is invested with some

portion of the sovereign functions of the
government, to be exercised by him for the benefit of
the public. The individual so invested is a public officer.32
Notwithstanding that petitioner came from the private
sector to sit as a member of the NBDB, the law invested
her with some portion of the sovereign functions of the
government, so that the purpose of the government is
achieved. In this case, the government aimed to enhance
the book publishing industry as it has a significant role in
the national development. Hence, the fact that she was
appointed from the public sector and not from the other
branches or agencies of the government does not take her
position outside the meaning of a public office. She was
appointed to the Governing Board in order to see to it that
the purposes for which the law was enacted are achieved.
The Governing Board acts collectively and carries out its
mandate as one body. The purpose of the law for appointing
members from the private sector is to ensure that they are
also properly represented in the implemen
_______________
31 R.A. 8047, Sec. 8; records, Vol. I (Crim. Case No. 25867), pp. 103
104.
32F.R. Mechem, A Treatise on the Law of Public Offices and Officers,
Sec. 1.
340

340

SUPREME COURT REPORTS ANNOTATED

Javier vs. Sandiganbayan, First Division

tation of government objectives to cultivate the book

publishing industry.
Moreover, the Court is not unmindful of the definition of
a public officer pursuant to the AntiGraft Law, which
provides that a public officer includes elective and
appointive officials and employees, permanent or
temporary, whether in the classified or unclassified or
exempt service receiving compensation, even nominal, from
the government.33
Thus, pursuant to the AntiGraft Law, one is a public
officer if one has been elected or appointed to a public
office. Petitioner was appointed by the President to the

Governing Board of the NDBD. Though her term is only for

a year that does not make her private person exercising a
public function. The fact that she is not receiving a monthly
salary is also of no moment. Section 7, R.A. No. 8047
provides that members of the Governing Board shall
receive per diem and such allowances as may be authorized
for every meeting actually attended and subject to
pertinent laws, rules and regulations. Also, under the Anti
Graft Law, the nature of ones appointment, and whether
the compensation one receives from the government is only
nominal, is immaterial because the person so elected or
appointed is still considered a public officer.
On the other hand, the Revised Penal Code defines a
public officer as any person who, by direct provision of the
law, popular election, popular election or appointment by
competent authority, shall take part in the performance of
public functions in the Government of the Philippine
Islands, or shall perform in said Government or in any of
its branches public duties as an employee, agent, or
subordinate official, of any rank or classes, shall be deemed
to be a public officer.34
Where, as in this case, petitioner performs public
functions in pursuance of the objectives of R.A. No. 8047,
verily, she is a public officer who takes part in the
performance of public
_______________
33R.A. No. 3019, Sec. 2 (b).
34REVISED PENAL CODE, Art. 203.
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Javier vs. Sandiganbayan, First Division

functions in the government whether as an employee,

agent, subordinate official, of any rank or classes. In fact,
during her tenure, petitioner took part in the drafting and
promulgation
of
several
rules
and
regulations
implementing R.A. No. 8047. She was supposed to
represent the country in the canceled book fair in Spain.
In fine, We hold that petitioner is a public officer. The
next question for the Court to resolve is whether, as a
public officer, petitioner is within the jurisdiction of the

Sandiganbayan.
Presently,35 the Sandiganbayan has jurisdiction over the
following:
Sec.4.Jurisdiction.The Sandiganbayan shall exercise
exclusive original jurisdiction in all cases involving:
A.Violations of Republic Act No. 3019, as amended,
other known as the AntiGraft and Corrupt Practices Act,
Republic Act No. 1379, and Chapter II, Section 2, Title VII,
Book II of the Revised Penal Code, where one or more of the
accused are officials occupying the following positions in the
government, whether in a permanent, acting or interim
capacity, at the time of the commission of the offense:
_______________
35 On June 11, 1978, then President Ferdinand E. Marcos promulgated
Presidential Decree (P.D.) No. 1486 which created the Sandiganbayan. The
Whereas Clause of the decree aimed to attain the highest norms of official conduct
required of public officers and employees, based on the concept that public officers
and employees shall serve with the highest degree of responsibility, integrity,
loyalty and efficiency and shall remain at all times accountable to the People. On
December 10, 1978, P.D. No. 1486 was amended by P.D. No. 1606 which expanded
the jurisdiction of the Sandiganbayan. Thereafter, P.D. No. 1861 amended P.D.
No. 1606 on March 23, 1983, which decree further altered the Sandiganbayan
jurisdiction. On March 30, 1995, Republic Act (R.A.) No. 7975 was approved,
making succeeding amendments to P.D. No. 1606, which was again amended on
February 5, 1997 by R.A. No. 8249. Section 4 of which further modified the
jurisdiction of the Sandiganbayan.
342

342

SUPREME COURT REPORTS ANNOTATED

Javier vs. Sandiganbayan, First Division

(1)Officials of the executive branch occupying the

positions of regional director and higher, otherwise
classified as Grade 27 and higher, of the Compensation
and Position Classification Act of 989 (Republic Act No.
6758), specifically including:
xxxx
(2) Members of Congress and officials thereof classified
as Grade Grade 27 and up under the Compensation and
Position Classification Act of 1989;
(3)Members of the judiciary without prejudice to the
provisions of the Constitution;

(4)Chairmen
and
members
of
Constitutional
Commission, without prejudice to the provisions of the
Constitution; and
(5) All other national and local officials classified as
Grade Grade 27 and higher under the Compensation and
Position Classification Act of 1989.
x x x x

Notably, the Director of Organization, Position

Classification and Compensation Bureau, of the
Department of Budget and management provided the
following information regarding the compensation and
position classification and/or rank equivalence of the
member of the Governing Board of the NBDB, thus:
Per FY 1999 Personal Services Itemization, the Governing Board
of NDBD is composed of one (1) Chairman (ex officio), one (1) Vice
Chairman (ex officio), and nine (9) Members, four (4) of whom are
ex officio and the remaining five (5) members represent the
private sector. The said five members of the Board do not receive
any salary and as such their position are not classified and are
not assigned any salary grade.
For purposes however of determining the rank equivalence of said
positions, notwithstanding that they do not have any salary grade
assignment, the same may be equated to Board Member II, SG
28.36
_______________
36Records, Vol. I (Crim Case No. 25898), p. 36.
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Javier vs. Sandiganbayan, First Division

Thus, based on the Amended Information in Criminal

Case No. 25898, petitioner belongs to the employees
classified as SG28, included in the phrase all other
national and local officials classified as Grade 27 and
higher under the Compensation and Position Classification
Act of 1989.
Anent the issue of double jeopardy, We can not likewise
give in to the contentions advanced by petitioner. She
argued that her right against double jeopardy was violated

when the Sandiganbayan denied her motion to quash the

two informations filed against her.
We believe otherwise. Records show that the
Informations in Criminal Case Nos. 25867 and 25898 refer
to offenses penalized by different statues, R.A. No. 3019
and RPC, respectively. It is elementary that for double
jeopardy to attach, the case against the accused must have
been dismissed or otherwise terminated without his
express consent by a court of competent jurisdiction, upon
valid information sufficient in form and substance and the
accused pleaded to the charge.37 In the instant case,
petitioner pleaded not guilty to the Information for
violation of the AntiGraft Law. She was not yet arraigned
in the criminal case for malversation of public funds
because she had filed a motion to quash the latter
information. Double jeopardy could not, therefore, attach
considering that the two cases remain pending before the
Sandiganbayan and that herein petitioner had pleaded to
only one in the criminal cases against her.
It is well settled that for a claim of double jeopardy to
prosper, the following requisites must concur: (1) there is a
complaint or information or other formal charge sufficient
in form and substance to sustain a conviction; (2) the same
is filed before a court of competent jurisdiction; (3) there is
a valid arraignment or plea to the charges; and (4) the
accused is convicted or acquitted or the case is otherwise
dismissed or
_______________
37Cabo v. Sandiganbayan, G.R. No. 169509, June 16, 2006, 491 SCRA
264.
344

344

SUPREME COURT REPORTS ANNOTATED

Javier vs. Sandiganbayan, First Division

terminated without his express consent.38 The third and

fourth requisites are not present in the case at bar.
In view of the foregoing, We hold that the present
petition does not fall under the exceptions wherein the
remedy of certiorari may be resorted to after the denial of
ones motion to quash the information. And even assuming
that petitioner may avail of such remedy, We still hold that

the Sandiganbayan did not commit grave abuse of

discretion amounting to lack of or in excess of jurisdiction.
WHEREFORE, the Petition is DISMISSED. The
questioned Resolutions and Order of the Sandiganbayan
are AFFIRMED. Costs against petitioner.
SO ORDERED.
YnaresSantiago (Chairperson), chiconazario, Velasco,
Jr., and nachura, JJ., concur.

Petition dismissed, resolutions affirmed.

Notes.Where the accused fails, before his
arraignment, to move for the quashal of the Information
against him which appears to charge more than one
offense, he thereby waives any objection and may thus be
found guilty of as many offenses as those charged in the
Information and proven during the trial. (People vs. Tao,
331 SCRA 449 [2000])
A judgment rendered by the trial court which was based
on a void plea bargaining is also void ab initio and can not
be considered to have attained finality for the simple
reason that a void judgment has no legality from its
inception, and double jeopardy will not lie. (People vs.
Magat, 332 SCRA 517 [2000])
o0o
_______________
38Id.

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