Arigo vs. Swift

10/10/21, 12:58 PM SUPREME COURT REPORTS ANNOTATED VOLUME 735
G.R. No. 206510. September 16, 2014.*

MOST REV. PEDRO D. ARIGO, D.D., Vicar Apostolic of
Puerto Princesa, MOST REV. DEOGRACIAS S. IÑIGUEZ,
JR., Bishop-Emeritus of Caloocan, FRANCES Q. QUIMPO,
CLEMENTE G. BAUTISTA, JR., Kalikasan-PNE, MARIA
CAROLINA P. ARAULLO, RENATO M. REYES, JR.,
Bagong Alyansang Makabayan, HON. NERI JAVIER
COLMENARES, Bayan Muna Party-list, ROLAND G.
SIMBULAN, PH.D., Junk VFA Movement, TERESITA R.
PEREZ, PH.D., HON. RAYMOND V. PALATINO,
Kabataan Party-list, PETER SJ. GONZALES,
Pamalakaya, GIOVANNI A. TAPANG, PH.D., Agham,
ELMER C. LABOG, Kilusang Mayo Uno, JOAN MAY E.
SALVADOR, Gabriela, JOSE ENRIQUE A. AFRICA,
THERESA A. CONCEPCION, MARY JOAN A. GUAN,
NESTOR T. BAGUINON, PH.D., A. EDSEL F. TUPAZ,
petitioners, vs. SCOTT H. SWIFT, in his capacity as
Commander of the U.S. 7th Fleet, MARK A. RICE, in his
capacity as Commanding Officer of the USS Guardian,
PRESIDENT BENIGNO S. AQUINO III, in his capacity as
Commander-in-Chief of the Armed Forces of the
Philippines, HON. ALBERT F. DEL ROSARIO, Secretary,
Department of Foreign Affairs, HON. PAQUITO OCHOA,
JR., Executive Secretary, Office of the President, HON.
VOLTAIRE T. GAZMIN, Secretary, Department of
National Defense, HON. RAMON JESUS P. PAJE,
Secretary, Department of Environment and Natural
Resources, VICE ADMIRAL JOSE LUIS M. ALANO,
Philippine Navy Flag Officer in Command, Armed Forces of
the Philippines, ADMIRAL RODOLFO D. ISORENA,
Commandant, Philippine Coast Guard, COMMODORE
ENRICO EFREN EVANGELISTA, Philippine Coast
Guard-Palawan, MAJOR GEN. VIRGILIO O. DOMINGO,
Commandant of Armed Forces of the Philippines Command
and LT. GEN. TERRY G.
_______________
* EN BANC.
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ROBLING, US Marine Corps Forces, Pacific and Balikatan

2013 Exercise Co-Director, respondents.
Remedial Law; Civil Procedure; Locus Standi; Words and

Phrases; Locus standi is “a right of appearance in a court of justice
on a given question.”—Locus standi is “a right of appearance in a
court of justice on a given question.” Specifically, it is “a party’s
personal and substantial interest in a case where he has
sustained or will sustain direct injury as a result” of the act being
challenged, and “calls for more than just a generalized grievance.”
However, the rule on standing is a procedural matter which this
Court has relaxed for nontraditional plaintiffs like ordinary
citizens, taxpayers and legislators when the public interest so
requires, such as when the subject matter of the controversy is of
transcendental importance, of overreaching significance to
society, or of paramount public interest.
Constitutional Law; Balance and Healthful Ecology; In the
landmark case of Oposa v. Factoran, Jr., 224 SCRA 792 (1993),
the Supreme Court (SC) recognized the “public right” of citizens to
“a balanced and healthful ecology which, for the first time in our
constitutional history, is solemnly incorporated in the
fundamental law.”—In the landmark case of Oposa v. Factoran,
Jr., 224 SCRA 792 (1993), we recognized the “public right” of
citizens to “a balanced and healthful ecology which, for the first
time in our constitutional history, is solemnly incorporated in the
fundamental law.” We declared that the right to a balanced and
healthful ecology need not be written in the Constitution for it is
assumed, like other civil and political rights guaranteed in the
Bill of Rights, to exist from the inception of mankind and it is an
issue of transcendental importance with intergenerational
implications. Such right carries with it the correlative duty to
refrain from impairing the environment.
Remedial Law; Civil Procedure; Class Suit; On the novel
element in the class suit filed by the petitioners minors in Oposa,
this Court ruled that not only do ordinary citizens have legal
standing to sue for the enforcement of environmental rights, they
can do so in representation of their own and future generations.—
On the novel element in the class suit filed by the petitioners
minors in Oposa, this Court ruled that not only do ordinary
citizens have legal standing to sue for the enforcement of
environmental rights, they can do so in representation of their
own and future generations. Thus:
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Petitioners minors assert that they represent their

generation as well as generations yet unborn. We find no
difficulty in ruling that they can, for themselves, for others of
their generation and for the succeeding generations, file a class
suit. Their personality to sue in behalf of the succeeding
generations can only be based on the concept of
intergenerational responsibility insofar as the right to a
balanced and healthful ecology is concerned. Such a right,
as hereinafter expounded, considers the “rhythm and harmony of
nature.” Nature means the created world in its entirety. Such
rhythm and harmony indispensably include, inter alia, the
judicious disposition, utilization, management, renewal and
conservation of the country’s forest, mineral, land, waters,
fisheries, wildlife, off-shore areas and other natural resources to
the end that their exploration, development and utilization be
equitably accessible to the present as well as future generations.
Needless to say, every generation has a responsibility to the next
to preserve that rhythm and harmony for the full enjoyment of a
balanced and healthful ecology. Put a little differently, the
minors’ assertion of their right to a sound environment
constitutes, at the same time, the performance of their obligation
to ensure the protection of that right for the generations to come.
Constitutional Law; State Immunity from Suit; This
traditional rule of State immunity which exempts a State from
being sued in the courts of another State without the former’s
consent or waiver has evolved into a restrictive doctrine which
distinguishes sovereign and governmental acts (jure imperii) from
private, commercial and proprietary acts (jure gestionis).—This
traditional rule of State immunity which exempts a State from
being sued in the courts of another State without the former’s
consent or waiver has evolved into a restrictive doctrine which
distinguishes sovereign and governmental acts (jure imperii) from
private, commercial and proprietary acts (jure gestionis). Under
the restrictive rule of State immunity, State immunity extends
only to acts jure imperii. The restrictive application of State
immunity is proper only when the proceedings arise out of
commercial transactions of the foreign sovereign, its commercial
activities or economic affairs.
Same; International Law; International Law of the Sea;
Words and Phrases; The international law of the sea is generally
defined as “a body of treaty rules and customary norms governing

the uses of the
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sea, the exploitation of its resources, and the exercise of jurisdiction

over maritime regimes.—The international law of the sea is
generally defined as “a body of treaty rules and customary norms
governing the uses of the sea, the exploitation of its resources,
and the exercise of jurisdiction over maritime regimes. It is a
branch of public international law, regulating the relations of
states with respect to the uses of the oceans.” The UNCLOS is a
multilateral treaty which was opened for signature on December
10, 1982 at Montego Bay, Jamaica. It was ratified by the
Philippines in 1984 but came into force on November 16, 1994
upon the submission of the 60th ratification.
Same; Same; Same; United Nations Convention on the Law of
the Sea; The United Nations Convention on the Law of the Sea
(UNCLOS) gives to the coastal State sovereign rights in varying
degrees over the different zones of the sea which are: 1) internal
waters, 2) territorial sea, 3) contiguous zone, 4) exclusive economic
zone, and 5) the high seas. It also gives coastal States more or less
jurisdiction over foreign vessels depending on where the vessel is
located.—The UNCLOS is a product of international negotiation
that seeks to balance State sovereignty (mare clausum) and the
principle of freedom of the high seas (mare liberum). The freedom
to use the world’s marine waters is one of the oldest customary
principles of international law. The UNCLOS gives to the coastal
State sovereign rights in varying degrees over the different zones
of the sea which are: 1) internal waters, 2) territorial sea, 3)
contiguous zone, 4) exclusive economic zone, and 5) the high seas.
It also gives coastal States more or less jurisdiction over foreign
vessels depending on where the vessel is located.
Same; Same; State Immunity from Suit; Visiting Forces
Agreement; Writ of Kalikasan; The waiver of State immunity
under the Visiting Forces Agreement (VFA) pertains only to
criminal jurisdiction and not to special civil actions such as the
present petition for issuance of a writ of Kalikasan.—The VFA is
an agreement which defines the treatment of United States troops
and personnel visiting the Philippines to promote “common
security interests” between the US and the Philippines in the
region. It provides for the guidelines to govern such visits of
military personnel, and further defines the rights of the United
States and the Philippine government in the matter of criminal

jurisdiction, movement of vessel and aircraft, importation and
exportation of equipment, materials and supplies.
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The invocation of US federal tort laws and even common law is

thus improper considering that it is the VFA which governs
disputes involving US military ships and crew navigating
Philippine waters in pursuance of the objectives of the agreement.
As it is, the waiver of State immunity under the VFA pertains
only to criminal jurisdiction and not to special civil actions such
as the present petition for issuance of a writ of Kalikasan. In fact,
it can be inferred from Section 17, Rule 7 of the Rules that a
criminal case against a person charged with a violation of an
environmental law is to be filed separately: SEC. 17. Institution of
separate actions.—The filing of a petition for the issuance of the
writ of kalikasan shall not preclude the filing of separate civil,
criminal or administrative actions.
Same; Same; Same; Same; Same; A ruling on the application
or non-application of criminal jurisdiction provisions of the
Visiting Forces Agreement (VFA) to US personnel who may be
found responsible for the grounding of the USS Guardian, would
be premature and beyond the province of a petition for a writ of
Kalikasan.—In any case, it is our considered view that a ruling on
the application or non-application of criminal jurisdiction
provisions of the VFA to US personnel who may be found
responsible for the grounding of the USS Guardian, would be
premature and beyond the province of a petition for a writ of
Kalikasan. We also find it unnecessary at this point to determine
whether such waiver of State immunity is indeed absolute. In the
same vein, we cannot grant damages which have resulted from
the violation of environmental laws. The Rules allows the
recovery of damages, including the collection of administrative
fines under R.A. No. 10067, in a separate civil suit or that deemed
instituted with the criminal action charging the same violation of
an environmental law.
Same; Same; Foreign Relations; It is settled that “the conduct
of the foreign relations of our government is committed by the
Constitution to the executive and legislative — ‘the political’ —
departments of the government, and the propriety of what may be
done in the exercise of this political power is not subject to judicial
inquiry or decision.”—A rehabilitation or restoration program to
be implemented at the cost of the violator is also a major relief

that may be obtained under a judgment rendered in a citizens’
suit under the Rules, viz.: RULE 5 SECTION 1. Reliefs in a
citizen suit.—If warranted, the court may grant to the plaintiff
proper reliefs which shall include the protec-
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tion, preservation or rehabilitation of the environment and the

payment of attorney’s fees, costs of suit and other litigation
expenses. It may also require the violator to submit a program of
rehabilitation or restoration of the environment, the costs of
which shall be borne by the violator, or to contribute to a special
trust fund for that purpose subject to the control of the court. In
the light of the foregoing, the Court defers to the Executive
Branch on the matter of compensation and rehabilitation
measures through diplomatic channels. Resolution of these issues
impinges on our relations with another State in the context of
common security interests under the VFA. It is settled that “[t]he
conduct of the foreign relations of our government is committed by
the Constitution to the executive and legislative — ‘the political’
— departments of the government, and the propriety of what may
be done in the exercise of this political power is not subject to
judicial inquiry or decision.”
SERENO, CJ., Concurring Opinion:
Constitutional Law; International Law; Visiting Forces
Agreement; Treaties; View that acts done pursuant to the Visiting
Forces Agreement (VFA) take the nature of governmental acts,
since both the United States and Philippine governments recognize
the VFA as a treaty with corresponding obligations, and the
presence of these two Naval Officers and the warship in Philippine
waters fell under this legal regime.—In this case, the two Naval
Officers were acting pursuant to their function as the
commanding officers of a warship, traversing Philippine waters
under the authority of the Visiting Forces Agreement (VFA).
While the events beg the question of what the warship was doing
in that area, when it should have been headed towards Indonesia,
its presence in Philippine waters is not wholly unexplainable. The
VFA is a treaty, and it has been affirmed as valid by this Court in
Bayan v. Zamora, 342 SCRA 449 (2000), and affirmed in Lim v.
Executive Secretary, 380 SCRA 739 (2002), and Nicolas v. Romulo,
578 SCRA 438 (2009). It has, in the past, been used to justify the
presence of United States Armed Forces in the Philippines. In this
respect therefore, acts done pursuant to the VFA take the nature
of governmental acts, since both the United States and Philippine
governments recognize the VFA as a treaty with corresponding
obligations, and the presence of these two Naval Officers and the
warship in Philippine waters fell under this legal regime.
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Same; Same; State Immunity from Suit; View that under the
regime of international law, there is an added dimension to
sovereign immunity exceptions: the tort exception.—Under the
regime of international law, there is an added dimension to
sovereign immunity exceptions: the tort exception. Whether this
has evolved into a customary norm is still debatable; what is
important to emphasize is that while some states have enacted
legislation to allow the piercing of sovereign immunity in tortuous
actions, the Foreign Sovereign Immunities Act of 1976 of the
United States (FSIA) contains such privilege. Specifically, the
FSIA contains exceptions for (1) waiver; (2) commercial activity;
(3) expropriation; (4) property rights acquired through succession
or donation; (5) damages for personal injury or death or damage
to or loss of property; (6) enforcement of an arbitration agreement;
(7) torture, extrajudicial killing, aircraft sabotage, hostage taking,
or the provision of material support to such an act, if the state
sponsors terrorism; and (8) maritime lien in a suit for admiralty
based on commercial activity.
Same; Same; Same; View that immunity, unlike in other
jurisdictions, is determined not by the courts of law but by the
executive branches.—In Vinuya v. Romulo, 619 SCRA 533 (2010),
we stated that “the question whether the Philippine government
should espouse claims of its nationals against a foreign
government is a foreign relations matter, the authority for which
is demonstrably committed by our Constitution not to the courts
but to the political branches.” Immunity then, unlike in other
jurisdictions, is determined not by the courts of law but by the
executive branches.
Same; Same; Same; View that the basic concept of state
immunity is that no state may be subjected to the jurisdiction of
another state without its consent.—The basic concept of state
immunity is that no state may be subjected to the jurisdiction of
another state without its consent. According to Professor Ian
Brownlie, it is “a procedural bar (not a substantive defence) based
on the status and functions of the state or official in question.”

Furthermore, its applicability depends on the law and procedural
rules of the forum state.
Same; Same; Same; Writ of Kalikasan; View that should the
Court issue the Writ, it could possibly entail international
responsibility for breaching the jurisdictional immunity of a
sovereign state.—No exception exists in Philippine or
international law that
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would remove the immunity of the United States in order to place

it under the jurisdiction of Philippine courts. The Writ of
Kalikasan is a compulsory writ, and its issuance initiates a legal
process that would circumvent the internationally established
rules of immunity. Should the Court issue the Writ, it could
possibly entail international responsibility for breaching the
jurisdictional immunity of a sovereign state.
LEONEN, J., Concurring Opinion:
Writ of Kalikasan; View that the writ of kalikasan is not an
all-embracing legal remedy to be wielded like a political tool.—The
writ of kalikasan is not an all-embracing legal remedy to be
wielded like a political tool. It is both an extraordinary and
equitable remedy which assists to prevent environmental
catastrophes. It does not replace other legal remedies similarly
motivated by concern for the environment and the community’s
ecological welfare. Certainly, when the petition itself alleges that
remedial and preventive remedies have occurred, the functions of
the writ cease to exist. In case of disagreement, parties need to
exhaust the political and administrative arena. Only when a
concrete cause of action arises out of facts that can be proven with
substantial evidence may the proper legal action be entertained.
Remedial Law; Civil Procedure; Class Suits; Citizen’s Suits;
View Citizen’s suits are procedural devices that allow a genuine
cause of action to be judicially considered in spite of the social
costs or negative externalities of such initiatives. This should be
clearly distinguished in our rules and in jurisprudence from class
suits that purport to represent the whole population and unborn
generations.—Citizen’s suits are suits brought by parties suffering
direct and substantial injuries; although in the environmental
field, these injuries may be shared with others. It is different from
class suits brought as representative suits under Oposa v.
Factoran, 224 SCRA 792 (1993). In my view, there is need to

review this doctrine insofar as it allows a nonrepresentative group
to universally represent a whole population as well as an unborn
generation binding them to causes of actions, arguments, and
reliefs which they did not choose. Generations yet unborn suffer
from the legal inability to assert against false or unwanted
representation. Citizen’s suits are procedural devices that allow a
genuine cause of action to be judicially considered in spite of
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the social costs or negative externalities of such initiatives. This

should be clearly distinguished in our rules and in jurisprudence
from class suits that purport to represent the whole population
and unborn generations. The former is in keeping with the
required constitutional protection for our people. The latter is
dangerous and should be used only in very extraordinary or rare
situations. It may be jurisprudentially inappropriate.
Constitutional Law; International Law; State Immunity from
Suit; View that the doctrine of sovereign immunity is understood
as a basic right extended to states by other states on the basis of
respect for sovereignty and independence.—The doctrine of
sovereign immunity evolves out of the theory and practice of
sovereignty and the principle par in parem non habet
jurisdictionem. Its particular contours as an international norm
have evolved far beyond the form it took when the theory of
absolute sovereignty was current. Contemporarily, it is
understood as a basic right extended to states by other states on
the basis of respect for sovereignty and independence. There
appears to be a consensus among states that sovereign immunity
as a concept is legally binding. However, there remains to be a
lack of international agreement as to how it is to be invoked and
the extent of immunity in some cases.
Same; Same; Same; View that this doctrine of relative
jurisdictional immunity (sovereign immunity) of states and their
agents becomes binding in our jurisdiction as international law
only through Section 2 of Article II or Section 21 of Article VII of
the Constitution.—This doctrine of relative jurisdictional
immunity (sovereign immunity) of states and their agents
becomes binding in our jurisdiction as international law only
through Section 2 of Article II or Section 21 of Article VII of the
Constitution. Article XVII, Section 3 of the Constitution is a
limitation on suits against our state. It is not the textual anchor
for determining the extent of jurisdictional immunities that

should be accorded to other states or their agents. International
law may have evolved further than the usual distinction between
acta jure imperii and acta jure gestionis. Indications of state
practice even of public respondents show that jurisdictional
immunity for foreign states may not apply to certain violations of
jus cogens rules of international customary law. There can be tort
exemptions provided by statute and, therefore, the state practice
of an agent’s sovereign being sued in our courts.
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Remedial Law; Civil Procedure; Jurisdiction; Environmental

Cases; View that the “environmental” nature of this petition, based
upon the alleged violation of the Tubbataha Reefs Natural Park
Act, by itself does not and should not automatically render the
Rules of Procedure for Environmental Cases applicable; This
means that even in environmental cases, Rule 3, Sections 2, 3, or
12 of the 1997 Rules of Civil Procedure should still also apply.—
The “environmental” nature of this petition, based upon the
alleged violation of the Tubbataha Reefs Natural Park Act, by
itself does not and should not automatically render the Rules of
Procedure for Environmental Cases applicable. At best, it must be
reconciled with rules on parties as contained in the Rules of
Court. This is to preclude a situation where the interpretation of
the Rules of Procedure for Environmental Cases results in a
ruling inconsistent or contrary to established legal concepts. It is
my position that unless the remedy sought will serve the purpose
of preventing an environmental catastrophe, the traditional
procedural route should be taken. This means that even in
environmental cases, Rule 3, Sections 2, 3, or 12 of the 1997 Rules
of Civil Procedure should still also apply.
Same; Same; Real Party-in-Interest; View that a real party-in-
interest is a litigant whose right or interest stands to benefit or get
injured by the judgment of the case.—A real party-in-interest is a
litigant whose right or interest stands to benefit or get injured by
the judgment of the case. The interest referred to must be
material interest, founded upon a legal right sought to be
enforced. They bring a suit because the act or omission of another
has caused them to directly suffer its consequences. Simply put, a
real party-in-interest has a cause of action based upon an existing
legal right-duty correlative.
Same; Same; Representatives; Environmental Cases; View

that in environmental cases, Section 3 of Rule 3 of the 1997 Rules
of Civil Procedure may be used to bring a suit, provided that two
(2) elements concur: a) the suit is brought on behalf of an identified
party whose right has been violated, resulting in some form of
damage, and b) the representative authorized by law or the Rules
of Court to represent the victim.—A “representative” is not the
party who will actually benefit or suffer from the judgment of the
case. The rule requires that the beneficiary be identified as he or
she is deemed the real party-in-interest. This means that acting
in a representative capacity does not turn into a real party-in-
interest someone who is other-
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wise an outsider to the cause of action. This rule enumerates who

may act as representatives, including those acting in a fiduciary
capacity. While not an exhaustive list, it does set a limit by
allowing only those who are “authorized by law or these Rules.” In
environmental cases, this section may be used to bring a suit,
provided that two elements concur: a) the suit is brought on
behalf of an identified party whose right has been violated,
resulting in some form of damage, and b) the representative
authorized by law or the Rules of Court to represent the victim.
Same; Same; Citizen’s Suits; View that a citizen’s suit that
seeks to enforce environmental rights and obligations may be
brought by any Filipino who is acting as a representative of others,
including minors or generations yet unborn.—A citizen’s suit that
seeks to enforce environmental rights and obligations may be
brought by any Filipino who is acting as a representative of
others, including minors or generations yet unborn. As
representatives, it is not necessary for petitioners to establish
that they directly suffered from the grounding of the USS
Guardian and the subsequent salvage operations. However, it is
imperative for them to indicate with certainty the injured parties
on whose behalf they bring the suit. Furthermore, the interest of
those they represent must be based upon concrete legal rights. It
is not sufficient to draw out a perceived interest from a general,
nebulous idea of a potential “injury.”
Same; Same; Same; Environmental Cases; View that since
environmental cases necessarily involve the balancing of different
types and degrees of interests, allowing anyone from the present
generation to represent others who are yet unborn poses three (3)
possible dangers.—“Minors and generations yet unborn” is a
category of real party in interest that was first established in
Oposa v. Factoran, 224 SCRA 792 (1993). In Oposa v. Factoran,
this court ruled that the representatives derived their personality
to file a suit on behalf of succeeding generations from
“intergenerational responsibility.” The case mirrored through
jurisprudence the general moral duty of the present generation to
ensure the full enjoyment of a balanced and healthful ecology by
the succeeding generations. Since environmental cases
necessarily involve the balancing of different types and degrees of
interests, allowing anyone from the present generation to
represent others who are yet unborn poses three possible dangers.
First, they run the risk of foreclosing arguments of others who are
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unable to take part in the suit, putting into question its

representativeness. Second, varying interests may potentially
result in arguments that are bordering on political issues, the
resolutions of which do not fall upon this court. Third,
automatically allowing a class or citizen’s suit on behalf of
“minors and generations yet unborn” may result in the
oversimplification of what may be a complex issue, especially in
light of the impossibility of determining future generation’s true
interests on the matter.
Same; Same; Res Judicata; View that the doctrine of res
judicata bars parties to litigate an issue more than once, and this
is strictly applied because “the maintenance of public order, the
repose of society . . . require that what has been definitely
determined by competent tribunals shall be accepted as
irrefragable legal truth.”—Res judicata renders conclusive
between the parties and their privies a ruling on their rights, not
just for the present action, but in all subsequent suits. This
pertains to all points and matters judicially tried by a competent
court. The doctrine bars parties to litigate an issue more than
once, and this is strictly applied because “the maintenance of
public order, the repose of society . . . require that what has been
definitely determined by competent tribunals shall be accepted as
irrefragable legal truth.”
Same; Same; Same; View that considering the effect of res
judicata, the ruling in Oposa v. Factoran has opened a dangerous
practice of binding parties who are yet incapable of making choices
for themselves, either due to minority or the sheer fact that they do
not yet exist.—Considering the effect of res judicata, the ruling in
Oposa v. Factoran has opened a dangerous practice of binding
parties who are yet incapable of making choices for themselves,
either due to minority or the sheer fact that they do not yet exist.
Once res judicata sets in, the impleaded minors and generations
yet unborn will be unable to bring a suit to relitigate their
interest.
Same; Same; Class Suits; View that in a class suit, petitioners
necessarily bring the suit in two capacities: first, as persons
directly injured by the act or omission complained of; and second,
as representatives of an entire class who have suffered the same
injury.—In a class suit, petitioners necessarily bring the suit in
two capacities: first, as persons directly injured by the act or
omission complained of; and second, as representatives of an
entire class who have suf-
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fered the same injury. In order to fully protect all those concerned,
petitioners must show that they belong in the same universe as
those they seek to represent. More importantly, they must
establish that, in that universe, they can intervene on behalf of
the rest.
Same; Same; Same; Environmental Cases; View that not all
environmental cases need to be brought as class suits.—Not all
environmental cases need to be brought as class suits. There is no
procedural requirement that majority of those affected must file a
suit in order that an injunctive writ or a writ of kalikasan can be
issued. It is sufficient that the party has suffered its own direct
and substantial interest, its legal basis is cogent, and it has the
capability to move forward to present the facts and, if necessary,
the scientific basis for its analysis for some of these cases to be
given due course.
Same; Same; Same; Same; Wvil prorit of Kalikasan; View that
the writ of kalikasan is a remedy that covers environmental
damages the magnitude of which transcends both political and
territorial boundaries.—The writ of kalikasan is a remedy that
covers environmental damages the magnitude of which
transcends both political and territorial boundaries. It specifically
provides that the prejudice to life, health, or property caused by
an unlawful act or omission of a public official, public employee, or
a private individual or entity must be felt in at least two cities or

provinces. The petition for its issuance may be filed on behalf of
those whose right to a balanced and healthful ecology is violated,
provided that the group or organization which seeks to represent
is duly accredited.
Same; Same; Same; Same; Same; Temporary Environmental
Protection Order; View that a Temporary Environmental
Protection Order (TEPO) is an order which either directs or
enjoins a person or government agency to perform or refrain from a
certain act, for the purpose of protecting, preserving, and/or
rehabilitating the environment.—A TEPO is an order which either
directs or enjoins a person or government agency to perform or
refrain from a certain act, for the purpose of protecting,
preserving, and/or rehabilitating the environment. The crucial
elements in its issuance are the presence of “extreme urgency”
and “grave injustice and irreparable injury” to the applicant.
Petitioners hinge the basis for this prayer on the salvage
operations conducted immediately after the incident. The remedy
is no longer available considering that all activities to remove the
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grounded USS Guardian have been concluded. Furthermore, the

Notice to Mariners No. 011-2013 issued by the Philippine Coast
Guard on January 29, 2013 effectively set the metes and bounds
of the damaged area. This notice also prohibited “leisure trips to
Tubbataha” and advised “all watercrafts transitting the vicinity to
take precautionary measures.”
Constitutional Law; International Law; State Immunity from
Suit; View that immunity does not necessarily apply to all the
foreign respondents should the case have been brought in a timely
manner, with the proper remedy, and in the proper court.—It is
my position that doctrine on relative jurisdictional immunity of
foreign states or otherwise referred to as sovereign immunity
should be further refined. I am of the view that immunity does
not necessarily apply to all the foreign respondents should
the case have been brought in a timely manner, with the
proper remedy, and in the proper court. Those who have
directly and actually committed culpable acts or acts
resulting from gross negligence resulting in the grounding
of a foreign warship in violation of our laws defining a
tortious act or one that protects the environment which
implement binding international obligations cannot claim
sovereign immunity. Some clarification may be necessary to

map the contours of relative jurisdictional immunity of foreign
states otherwise known as the doctrine of sovereign immunity.
The doctrine of sovereign immunity can be understood either as a
domestic or an international concept.
Same; Same; Same; View that there appears to be a consensus
among states that sovereign immunity as a concept is legally
binding.—Under international law, sovereign immunity remains
to be an abstract concept. On a basic level, it is understood as a
basic right extended to states by other states on the basis of
respect for sovereignty and independence. There appears to be a
consensus among states that sovereign immunity as a concept is
legally binding. Nevertheless, legal scholars observe that there
remains to be a lack of agreement as to how it is to be invoked or
exercised in actual cases. Finke presents: States accept sovereign
immunity as a legally binding concept, but only on a very abstract
level. They agree on the general idea of immunity, but
disagree on the extent to which they actually must grant
immunity in a specific case.
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Arigo vs. Swift
Same; Same; Same; European Convention on State Immunity;

Words and Phrases; View that in the Council of Europe’s
explanatory report, sovereign immunity is defined as “a concept of
international law, which has developed out of the principle par in
parem non habet imperium, by virtue of which one State is not
subject to the jurisdiction of another State.”—The European
Convention on State Immunity is a treaty established through the
Council of Europe on May 16, 1972. In the Council of Europe’s
explanatory report, sovereign immunity is defined as “a concept of
international law, which has developed out of the principle par in
parem non habet imperium, by virtue of which one State is not
subject to the jurisdiction of another State.” The treaty arose out
of the need to address cases where states become involved in
areas of private law: For many years State immunity has occupied
the attention of eminent jurists. It is also the object of abundant
case law. The development of international relations and
the increasing intervention of States in spheres belonging
to private law have posed the problem still more acutely by
increasing the number of disputes opposing individuals
and foreign States. There are, at present, two theories, that of
absolute State immunity which is the logical consequence of the
principle stated above and that of relative State immunity

which is tending to predominate on account of the
requirement of modern conditions. According to this latter
theory, the State enjoys immunity for acts jure imperii but
not for acts jure gestionis, that is to say when it acts in the
same way as a private person in relations governed by
private law. This divergence of opinion causes difficulties in
international relations. States whose courts and administrative
authorities apply the theory of absolute State immunity are led to
call for the same treatment abroad.
Same; Same; Visiting Forces Agreement; View that the extent
of the Visiting Forces Agreement’s (VFA’s) categorization as
between the Philippine and United States government — either as
a “treaty”/
“executive
agreement” or as a matter subject to international
comity — remains vague.—In sum, the extent of the VFA’s
categorization as between the Philippine and United States
government — either as a “treaty”/“executive agreement” or as a
matter subject to international comity — remains vague.
Nevertheless, it is certain that the United States have made a
political commitment to recognize the provisions and execute their
obligations under the VFA. This in-
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Arigo vs. Swift
cludes respecting jurisdictional issues in cases involving an

offense committed by a US military personnel.
Same; Same; State Immunity from Suit; There appears to be a
general recognition that foreign states are to be afforded immunity
on account of equality of states, but the “practice” lacks uniformity.
—There appears to be a general recognition that foreign states
are to be afforded immunity on account of equality of states, but
the “practice” lacks uniformity. Finke points out that the doctrine
as exercised by different states suffers from “substantial
disagreement on detail and substance.” The inconsistencies in
state practice render the possibility of invoking international
comity even more problematic.
Same; Same; Same; View that the International Court of
Justice’s position that sovereign immunity remains applicable even
if the action is based upon violations of international law should
be limited only to acts during armed conflict.—In sum, the
International Court of Justice’s position that sovereign immunity
remains applicable even if the action is based upon violations of

international law should be limited only to acts during armed
conflict. Jurisdictional Immunities of the State (Germany v. Italy)
also referred to actions commited during World War II and
especially referred to the situation of international law at that
time. The majority reflected the attitude that sovereign immunity
is a customary norm. It, however, recognizes that uniformity in
state practice is far from the consensus required to articulate
specific rules pertaining to other circumstances — such as
transgressions of foreign warships of domestic legislation while
granted innocent passage. It impliedly accepted that states
enjoyed wide latitude to specify their own norms.
Same; Same; Same; View that as a principle of international
law, the doctrine of sovereign immunity is deemed automatically
incorporated in our domestic legal system as per Article II, Section
2 of the Constitution.—Sovereign immunity is a doctrine
recognized by states under the international law system.
However, its characterization as a principle is more appropriate
in that “the extent to which foreign states are awarded immunity
differs from state to state.” This appears to be an accepted
arrangement in light of the different state immunity laws all over
the world. As it stands, states are allowed to draw the line in the
application of sovereign immunity in cases involving foreign
states and their agents. As a principle of
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Arigo vs. Swift
international law, it is deemed automatically incorporated in our

domestic legal system as per Article II, Section 2 of the
Constitution. Considering this leeway, along with the urgency and
importance of the case at hand, the Philippines is, therefore, free
to provide guidelines consistent with international law, domestic
legislation, and existing jurisprudence.
Same; Same; Same; View that tortious acts or crimes
committed while discharging official functions are also not covered
by sovereign immunity.—Shauf v. Court of Appeals, 191 SCRA
713 (1990), evolved the doctrine further as it stated that “[the]
rational for this ruling is that the doctrine of state immunity
cannot be used as an instrument for perpetrating an injustice.”
Tortious acts or crimes committed while discharging official
functions are also not covered by sovereign immunity. Quoting the
ruling in Chavez v. Sandiganbayan, 193 SCRA 282 (1991), this
court held American naval officers personally liable for damages
in Wylie v. Rarang, 209 SCRA 357 (1992), to wit:. . . The

petitioners, however, were negligent because under their direction
they issued the publication without deleting the name “Auring.”
Such act or omission is ultra vires and cannot be part of official
duty. It was a tortious act which ridiculed the private respondent.
Same; Same; Same; View that the Philippines has no law on
the application of sovereign immunity in cases of damages and/or
violations of domestic law involving agents of a foreign state.—As
it stands, the Philippines has no law on the application of
sovereign immunity in cases of damages and/or violations of
domestic law involving agents of a foreign state. But our
jurisprudence does have openings to hold those who have
committed an act ultra vires responsible in our domestic courts.
Same; Same; Same; View that immunity does not necessarily
apply to all the foreign respondents should the case have been
brought in a timely manner, with the proper remedy, and in the
proper court.—Considering the flexibility in international law and
the doctrines that we have evolved so far, I am of the view that
immunity does not necessarily apply to all the foreign
respondents should the case have been brought in a timely
manner, with the proper remedy, and in the proper court.
Those who have directly and actually committed culpable
acts or acts
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resulting from gross negligence resulting in the grounding

of a foreign warship in violation of our laws defining a
tortious act or one that protects the environment which
implement binding international obligations cannot claim
sovereign immunity.
PETITION for issuance of a Writ of Kalikasan.

The facts are stated in the opinion of the Court.
Anthony Edsel Conrad F. Tupaz and National Union of
People’s Lawyers for petitioners.
VILLARAMA, JR., J.:

Before us is a petition for the issuance of a Writ of
Kalikasan with prayer for the issuance of a Temporary
Environmental Protection Order (TEPO) under Rule 7 of
A.M. No.
09-6-8-SC, otherwise known as the Rules of Procedure for

Environmental Cases (Rules), involving violations of
environmental laws and regulations in relation to the
grounding of the US military ship USS Guardian over the
Tubbataha Reefs.
Factual Background

The name “Tubbataha” came from the Samal (seafaring
people of southern Philippines) language which means
“long reef exposed at low tide.” Tubbataha is composed of
two huge coral atolls — the north atoll and the south atoll
— and the Jessie Beazley Reef, a smaller coral structure
about 20 kilometers north of the atolls. The reefs of
Tubbataha and Jessie Beazley are considered part of
Cagayancillo, a remote island municipality of Palawan.1
In 1988, Tubbataha was declared a National Marine
Park by virtue of Proclamation No. 306 issued by President
Corazon C. Aquino on August 11, 1988. Located in the
middle of
_______________
1 Tubbataha Reefs Natural Park <http://tubbatahareef.org>.
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Arigo vs. Swift
Central Sulu Sea, 150 kilometers southeast of Puerto

Princesa City, Tubbataha lies at the heart of the Coral
Triangle, the global center of marine biodiversity.
In 1993, Tubbataha was inscribed by the United Nations
Educational Scientific and Cultural Organization
(UNESCO) as a World Heritage Site. It was recognized as
one of the Philippines’ oldest ecosystems, containing
excellent examples of pristine reefs and a high diversity of
marine life. The 97,030-hectare protected marine park is
also an important habitat for internationally threatened
and endangered marine species. UNESCO cited
Tubbataha’s outstanding universal value as an important
and significant natural habitat for in situ conservation of
biological diversity; an example representing significant
ongoing ecological and biological processes; and an area of
exceptional natural beauty and aesthetic importance.2
On April 6, 2010, Congress passed Republic Act (R.A.)
No. 10067,3 otherwise known as the “Tubbataha Reefs
Natural Park (TRNP) Act of 2009” “to ensure the protection
and conservation of the globally significant economic,

biological, sociocultural, educational and scientific values of
the Tubbataha Reefs into perpetuity for the enjoyment of
present and future generations.” Under the “no-take”
policy, entry into the waters of TRNP is strictly regulated
and many human activities are prohibited and penalized or
fined, including fishing, gathering, destroying and
disturbing the resources within the TRNP. The law
likewise created the Tubbataha Protected Area
Management Board (TPAMB) which shall be the sole
policy-making and permit-granting body of the TRNP.
_______________
2 Id.
3 “An Act Establishing the Tubbataha Reefs Natural Park in the
Province of Palawan as a Protected Area under the Nipas Act (R.A. 7586)
and the Strategic Environmental Plan (SEP) for Palawan Act (R.A. 7611),
Providing for its Management and for Other Purposes.”
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The USS Guardian is an Avenger-class mine

countermeasures ship of the US Navy. In December 2012,
the US Embassy in the Philippines requested diplomatic
clearance for the said vessel “to enter and exit the
territorial waters of the Philippines and to arrive at the
port of Subic Bay for the purpose of routine ship
replenishment, maintenance, and crew liberty.”4 On
January 6, 2013, the ship left Sasebo, Japan for Subic Bay,
arriving on January 13, 2013 after a brief stop for fuel in
Okinawa, Japan.
On January 15, 2013, the USS Guardian departed Subic
Bay for its next port of call in Makassar, Indonesia. On
January 17, 2013 at 2:20 a.m. while transiting the Sulu
Sea, the ship ran aground on the northwest side of South
Shoal of the Tubbataha Reefs, about 80 miles east-
southeast of Palawan. No one was injured in the incident,
and there have been no reports of leaking fuel or oil.
On January 20, 2013, U.S. 7th Fleet Commander, Vice
Admiral Scott Swift, expressed regret for the incident in a
press statement.5 Likewise, US Ambassador to the
Philippines Harry K. Thomas, Jr., in a meeting at the
Department of Foreign Affairs (DFA) on February 4,
“reiterated his regrets over the grounding incident and
assured Foreign Affairs Secretary Albert F. del Rosario

that the United States will provide appropriate
compensation for damage to the reef caused by the ship.”6
By March 30, 2013, the US Navy-led salvage team had
finished removing the last piece of the grounded ship from
the coral reef.
_______________
4 Rollo, pp. 194-199.

5<http://manila.usembassy.gov/pressphotoreleases 2013/navy-
commander-expresses-regret-concerning-uss-guardian-grounding.html>.
6 “Joint Statement Between The Philippines And The United States
On The USS Guardian Grounding On Tubbataha Reef,” February 5, 2013.
Accessed at US Embassy website
<http://manila.usembassy.gov/jointstatementguardiantubbataha.html>.
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Arigo vs. Swift
On April 17, 2013, the above named petitioners on their

behalf and in representation of their respective
sector/organization and others, including minors or
generations yet unborn, filed the present petition against
Scott H. Swift in his capacity as Commander of the U.S.
7th Fleet, Mark A. Rice in his capacity as Commanding
Officer of the USS Guardian and Lt. Gen. Terry G.
Robling, US Marine Corps Forces, Pacific and Balikatan
2013 Exercises Co-Director (“US respondents”); President
Benigno S. Aquino III in his capacity as Commander-in-
Chief of the Armed Forces of the Philippines (AFP), DFA
Secretary Albert F. Del Rosario, Executive Secretary
Paquito Ochoa, Jr., Secretary Voltaire T. Gazmin
(Department of National Defense), Secretary Jesus P. Paje
(Department of Environment and Natural Resources), Vice
Admiral Jose Luis M. Alano (Philippine Navy Flag Officer
in Command, AFP), Admiral Rodolfo D. Isorena (Philippine
Coast Guard Commandant), Commodore Enrico Efren
Evangelista (Philippine Coast Guard-Palawan), and Major
General Virgilio O. Domingo (AFP Commandant),
collectively the “Philippine respondents.”
The Petition

Petitioners claim that the grounding, salvaging and
post-salvaging operations of the USS Guardian cause and
continue to cause environmental damage of such
magnitude as to affect the provinces of Palawan, Antique,

Aklan, Guimaras, Iloilo, Negros Occidental, Negros
Oriental, Zamboanga del Norte, Basilan, Sulu, and Tawi-
Tawi, which events violate their constitutional rights to a
balanced and healthful ecology. They also seek a directive
from this Court for the institution of civil, administrative
and criminal suits for acts committed in violation of
environmental laws and regulations in connection with the
grounding incident.
Specifically, petitioners cite the following violations
committed by US respondents under R.A. No. 10067:
unauthorized entry (Section 19); nonpayment of
conservation fees (Sec-
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Arigo vs. Swift
tion 21); obstruction of law enforcement officer (Section 30);

damages to the reef (Section 20); and destroying and
disturbing resources (Section 26[g]). Furthermore,
petitioners assail certain provisions of the Visiting Forces
Agreement (VFA) which they want this Court to nullify for
being unconstitutional.
The numerous reliefs sought in this case are set forth in
the final prayer of the petition, to wit:
WHEREFORE, in view of the foregoing, Petitioners

respectfully pray that the Honorable Court:
1. Immediately issue upon the filing of this petition a
Temporary Environmental Protection Order (TEPO) and/or a
Writ of Kalikasan, which shall, in particular:
a. Order Respondents and any person acting on their behalf, to
cease and desist all operations over the Guardian grounding
incident;
b. Initially demarcating the metes and bounds of the damaged
area as well as an additional buffer zone;
c. Order Respondents to stop all port calls and war games
under ‘Balikatan’ because of the absence of clear guidelines,
duties, and liability schemes for breaches of those duties, and
require Respondents to assume responsibility for prior and future
environmental damage in general, and environmental damage
under the Visiting Forces Agreement in particular;
d. Temporarily define and describe allowable activities of
ecotourism, diving, recreation, and limited commercial activities
by fisherfolk and indigenous communities near or around the
TRNP but away from the damaged site and an additional buffer
zone;
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Arigo vs. Swift
2. After summary hearing, issue a Resolution extending the

TEPO until further orders of the Court;
3. After due proceedings, render a Decision which shall include,
without limitation:
a. Order Respondents Secretary of Foreign Affairs, following
the dispositive portion of Nicolas v. Romulo, “to forthwith
negotiate with the United States representatives for the
appropriate agreement on [environmental guidelines and
environmental accountability] under Philippine authorities as
provided in Art. V[ ] of the VFA…”
b. Direct Respondents and appropriate agencies to commence
administrative, civil, and criminal proceedings against erring
officers and individuals to the full extent of the law, and to make
such proceedings public;
c. Declare that Philippine authorities may exercise primary
and exclusive criminal jurisdiction over erring U.S. personnel
under the circumstances of this case;
d. Require Respondents to pay just and reasonable
compensation in the settlement of all meritorious claims for
damages caused to the Tubbataha Reef on terms and conditions
no less severe than those applicable to other States, and damages
for personal injury or death, if such had been the case;
e. Direct Respondents to cooperate in providing for the
attendance of witnesses and in the collection and production of
evidence, including seizure and delivery of objects connected with
the offenses related to the grounding of the Guardian;
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Arigo vs. Swift
f. Require the authorities of the Philippines and the United

States to notify each other of the disposition of all cases, wherever
heard, related to the grounding of the Guardian;
g. Restrain Respondents from proceeding with any purported
restoration, repair, salvage or post salvage plan or plans,
including cleanup plans covering the damaged area of the
Tubbataha Reef absent a just settlement approved by the
Honorable Court;
h. Require Respondents to engage in stakeholder and LGU

consultations in accordance with the Local Government Code and
R.A. 10067;
i. Require Respondent US officials and their representatives to
place a deposit to the TRNP Trust Fund defined under Section 17
of RA 10067 as a bona fide gesture towards full reparations;
j. Direct Respondents to undertake measures to rehabilitate
the areas affected by the grounding of the Guardian in light of
Respondents’ experience in the Port Royale grounding in 2009,
among other similar grounding incidents;
k. Require Respondents to regularly publish on a quarterly
basis and in the name of transparency and accountability such
environmental damage assessment, valuation, and valuation
methods, in all stages of negotiation;
l. Convene a multisectoral technical working group to provide
scientific and technical support to the TPAMB;
m. Order the Department of Foreign Affairs, Department of
National Defense, and the Department of Environment
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Arigo vs. Swift
and Natural Resources to review the Visiting Forces Agreement

and the Mutual Defense Treaty to consider whether their
provisions allow for the exercise of erga omnes rights to a
balanced and healthful ecology and for damages which follow from
any violation of those rights;
n. Narrowly tailor the provisions of the Visiting Forces
Agreement for purposes of protecting the damaged areas of
TRNP;
o. Declare the grant of immunity found in Article V (“Criminal
Jurisdiction”) and Article VI of the Visiting Forces Agreement
unconstitutional for violating equal protection and/or for violating
the preemptory norm of nondiscrimination incorporated as part of
the law of the land under Section 2, Article II, of the Philippine
Constitution;
p. Allow for continuing discovery measures;
q. Supervise marine wildlife rehabilitation in the Tubbataha
Reefs in all other respects; and
4. Provide just and equitable environmental rehabilitation
measures and such other reliefs as are just and equitable under
the premises.7 (Underscoring supplied)
Since only the Philippine respondents filed their

comment8 to the petition, petitioners also filed a motion for
early resolu-
_______________
7 Rollo, pp. 89-92.

8 Id., at pp. 156-191. In a letter dated 27 May 2013, the DFA’s Office of
Legal Affairs informed this Court that it has received from the Embassy of
the United States the Notice sent by this Court, with a request to return
the same. It said that the US Embassy “asserts
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Arigo vs. Swift
tion and motion to proceed ex parte against the US

respondents.9

Respondents’ Consolidated Comment

In their consolidated comment with opposition to the
application for a TEPO and ocular inspection and
production orders, respondents assert that: (1) the grounds
relied upon for the issuance of a TEPO or writ of Kalikasan
have become fait accompli as the salvage operations on the
USS Guardian were already completed; (2) the petition is
defective in form and substance; (3) the petition improperly
raises issues involving the VFA between the Republic of
the Philippines and the United States of America; and (4)
the determination of the extent of responsibility of the US
Government as regards the damage to the Tubbataha Reefs
rests exclusively with the executive branch.

The Court’s Ruling

As a preliminary matter, there is no dispute on the legal
standing of petitioners to file the present petition.
Locus standi is “a right of appearance in a court of
justice on a given question.”10 Specifically, it is “a party’s
personal and substantial interest in a case where he has
sustained or will sustain direct injury as a result” of the act
being challenged, and “calls for more than just a
generalized griev-
_______________
that it is not an agent for the service of process upon the individuals
named in court documents, and that the transmission of the Court
documents should have been done through diplomatic channels.” (Id., at p.
255.)
9 Id., at pp. 215-247.

10 Bayan Muna v. Romulo, G.R. No. 159618, February 1, 2011, 641
SCRA 244, 254, citing David v. Macapagal-Arroyo, 522 Phil. 705, 755; 489
SCRA 160, 216 (2006).
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Arigo vs. Swift
ance.”11 However, the rule on standing is a procedural

matter which this Court has relaxed for nontraditional
plaintiffs like ordinary citizens, taxpayers and legislators
when the public interest so requires, such as when the
subject matter of the controversy is of transcendental
importance, of overreaching significance to society, or of
paramount public interest.12

In the landmark case of Oposa v. Factoran, Jr.,13 we
recognized the “public right” of citizens to “a balanced and
healthful ecology which, for the first time in our
constitutional history, is solemnly incorporated in the
fundamental law.” We declared that the right to a balanced
and healthful ecology need not be written in the
Constitution for it is assumed, like other civil and political
rights guaranteed in the Bill of Rights, to exist from the
inception of mankind and it is an issue of transcendental
importance with intergenerational implications. Such right
carries with it the correlative duty to refrain from
impairing the environment.14
On the novel element in the class suit filed by the
petitioners minors in Oposa, this Court ruled that not only
do ordinary citizens have legal standing to sue for the
enforcement of environmental rights, they can do so in
representation of their own and future generations. Thus:
_______________
11 Id., citing Jumamil v. Cafe, 507 Phil. 455, 465; 470 SCRA 475, 487
(2005), citing Integrated Bar of the Philippines v. Zamora, 392 Phil. 618,
632-633; 338 SCRA 81, 100 (2000).
12 Biraogo v. Philippine Truth Commission of 2010, G.R. Nos. 192935
& 193036, December 7, 2010, 637 SCRA 78, 151, citing Social Justice
Society (SJS) v. Dangerous Drugs Board, et al., 591 Phil. 393, 404; 570
SCRA 410, 421 (2008); Tatad v. Secretary of the Department of Energy,
346 Phil. 321; 281 SCRA 330 (1997) and De Guia v. COMELEC, G.R. No.
104712, May 6, 1992, 208 SCRA 420, 422.
13 G.R. No. 101083, July 30, 1993, 224 SCRA 792.

14 Id., at pp. 804-805.
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Petitioners minors assert that they represent their generation

as well as generations yet unborn. We find no difficulty in ruling
that they can, for themselves, for others of their generation and
for the succeeding generations, file a class suit. Their
personality to sue in behalf of the succeeding generations
can only be based on the concept of intergenerational
responsibility insofar as the right to a balanced and
healthful ecology is concerned. Such a right, as hereinafter
expounded, considers the “rhythm and harmony of nature.”
Nature means the created world in its entirety. Such rhythm and
harmony indispensably include, inter alia, the judicious
disposition, utilization, management, renewal and conservation of
the country’s forest, mineral, land, waters, fisheries, wildlife, off-
shore areas and other natural resources to the end that their
exploration, development and utilization be equitably accessible
to the present as well as future generations. Needless to say,
every generation has a responsibility to the next to preserve that
rhythm and harmony for the full enjoyment of a balanced and
healthful ecology. Put a little differently, the minors’ assertion of
their right to a sound environment constitutes, at the same time,
the performance of their obligation to ensure the protection of
that right for the generations to come.15 (Emphasis supplied)

The liberalization of standing first enunciated in Oposa,
insofar as it refers to minors and generations yet unborn, is
now enshrined in the Rules which allows the filing of a
citizen suit in environmental cases. The provision on
citizen suits in the Rules “collapses the traditional rule on
personal and direct interest, on the principle that humans
are stewards of nature.”16
Having settled the issue of locus standi, we shall
address the more fundamental question of whether this
Court has
_______________
15 Id., at pp. 802-803.

16 See Annotation to the Rules of Procedure for Environmental Cases.
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Arigo vs. Swift
jurisdiction over the US respondents who did not submit

any pleading or manifestation in this case.
The immunity of the State from suit, known also as the
doctrine of sovereign immunity or non-suability of the
State,17 is expressly provided in Article XVI of the 1987
Constitution which states:
Section 3. The State may not be sued without its consent.

In United States of America v. Judge Guinto,18 we
discussed the principle of state immunity from suit, as
follows:
The rule that a state may not be sued without its consent, now
expressed in Article XVI, Section 3, of the 1987 Constitution, is
one of the generally accepted principles of international law that
we have adopted as part of the law of our land under Article II,
Section 2. x x x.
Even without such affirmation, we would still be bound by the
generally accepted principles of international law under the
doctrine of incorporation. Under this doctrine, as accepted by the
majority of states, such principles are deemed incorporated in the
law of every civilized state as a condition and consequence of its
membership in the society of nations. Upon its admission to such
society, the state is automatically obligated to comply with these
principles in its relations with other states.
As applied to the local state, the doctrine of state immunity is
based on the justification given by Justice Holmes that “there can
be no legal right against the authority which makes the law on
which the right depends.” [Kawanakoa v. Polybank, 205 U.S. 349]
There are other practical reasons for the enforcement of the
doctrine. In the case of the foreign state sought to
_______________
17 Air Transportation Office v. Ramos, G.R. No. 159402, February 23, 2011,
644 SCRA 36, 41.
18 261 Phil. 777; 182 SCRA 644 (1990).
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be impleaded in the local jurisdiction, the added inhibition

is expressed in the maxim par in parem, non habet
imperium. All states are sovereign equals and cannot
assert jurisdiction over one another. A contrary
disposition would, in the language of a celebrated case,
“unduly vex the peace of nations.” [De Haber v. Queen of
Portugal, 17 Q. B. 171]
While the doctrine appears to prohibit only suits against the
state without its consent, it is also applicable to complaints
filed against officials of the state for acts allegedly
performed by them in the discharge of their duties. The
rule is that if the judgment against such officials will require the
state itself to perform an affirmative act to satisfy the same, such
as the appropriation of the amount needed to pay the damages
awarded against them, the suit must be regarded as against the
state itself although it has not been formally impleaded. [Garcia
v. Chief of Staff, 16 SCRA 120.] In such a situation, the state may
move to dismiss the complaint on the ground that it has been filed
without its consent.19 (Emphasis supplied)

Under the American Constitution, the doctrine is
expressed in the Eleventh Amendment which reads:
The Judicial power of the United States shall not be construed

to extend to any suit in law or equity, commenced or prosecuted
against one of the United States by Citizens of another State, or
by Citizens or Subjects of any Foreign State.
In the case of Minucher v. Court of Appeals,20 we further

expounded on the immunity of foreign states from the
jurisdiction of local courts, as follows:
_______________
19 Id., at pp. 790-792; pp. 652-654.
20 445 Phil. 250; 397 SCRA 244 (2003).
132

Arigo vs. Swift
The precept that a State cannot be sued in the courts of a

foreign state is a long-standing rule of customary international
law then closely identified with the personal immunity of a
foreign sovereign from suit and, with the emergence of democratic
states, made to attach not just to the person of the head of state,
or his representative, but also distinctly to the state itself in its
sovereign capacity. If the acts giving rise to a suit are those
of a foreign government done by its foreign agent,
although not necessarily a diplomatic personage, but
acting in his official capacity, the complaint could be
barred by the immunity of the foreign sovereign from suit
without its consent. Suing a representative of a state is
believed to be, in effect, suing the state itself. The proscription is
not accorded for the benefit of an individual but for the State, in
whose service he is, under the maxim — par in parem, non habet
imperium — that all states are sovereign equals and cannot
assert jurisdiction over one another. The implication, in broad
terms, is that if the judgment against an official would require the
state itself to perform an affirmative act to satisfy the award,
such as the appropriation of the amount needed to pay the
damages decreed against him, the suit must be regarded as being
against the state itself, although it has not been formally
impleaded.21 (Emphasis supplied)

In the same case we also mentioned that in the case of
diplomatic immunity, the privilege is not an immunity
from the observance of the law of the territorial sovereign
or from ensuing legal liability; it is, rather, an immunity
from the exercise of territorial jurisdiction.22
In United States of America v. Judge Guinto,23 one of the
consolidated cases therein involved a Filipino employed at
Clark Air Base who was arrested following a buy-bust
opera-
_______________
21 Id., at pp. 269-270; pp. 259-261. Citations omitted.

22 Id., at p. 268; p. 259, citing J.L. Brierly, “The Law of Nations,”
Oxford University Press, 6th edition, p. 244, (1963).
23 Supra note 18 at pp. 788-789 & 797; p. 650.
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Arigo vs. Swift
tion conducted by two officers of the US Air Force, and was

eventually dismissed from his employment when he was
charged in court for violation of R.A. No. 6425. In a
complaint for damages filed by the said employee against
the military officers, the latter moved to dismiss the case
on the ground that the suit was against the US

Government which had not given its consent. The RTC
denied the motion but on a petition for certiorari and
prohibition filed before this Court, we reversed the RTC
and dismissed the complaint. We held that petitioners US
military officers were acting in the exercise of their official
functions when they conducted the buy-bust operation
against the complainant and thereafter testified against
him at his trial. It follows that for discharging their duties
as agents of the United States, they cannot be directly
impleaded for acts imputable to their principal, which has
not given its consent to be sued.
This traditional rule of State immunity which exempts a
State from being sued in the courts of another State
without the former’s consent or waiver has evolved into a
restrictive doctrine which distinguishes sovereign and
governmental acts (jure imperii) from private, commercial
and proprietary acts (jure gestionis). Under the restrictive
rule of State immunity, State immunity extends only to
acts jure imperii. The restrictive application of State
immunity is proper only when the proceedings arise out of
commercial transactions of the foreign sovereign, its
commercial activities or economic affairs.24
In Shauf v. Court of Appeals,25 we discussed the
limitations of the State immunity principle, thus:
It is a different matter where the public official is made

to account in his capacity as such for acts contrary to law
and injurious to the rights of plaintiff. As was clearly set
forth by Justice Zaldivar in
_______________
24 United States of America v. Ruiz, 221 Phil. 179, 182-183 & 184; 136 SCRA
487, 492 (1985).
25 G.R. No. 90314, November 27, 1990, 191 SCRA 713.
134

Arigo vs. Swift
Director of the Bureau of Telecommunications, et al. v. Aligaen,

etc., et al.: “Inasmuch as the State authorizes only legal acts by its
officers, unauthorized acts of government officials or officers are
not acts of the State, and an action against the officials or officers
by one whose rights have been invaded or violated by such acts,
for the protection of his rights, is not a suit against the State
within the rule of immunity of the State from suit. In the same
tenor, it has been said that an action at law or suit in equity
against a State officer or the director of a State department on the
ground that, while claiming to act for the State, he violates or
invades the personal and property rights of the plaintiff, under an
unconstitutional act or under an assumption of authority which
he does not have, is not a suit against the State within the
constitutional provision that the State may not be sued without
its consent.” The rationale for this ruling is that the doctrine of
state immunity cannot be used as an instrument for perpetrating
an injustice.
xxxx
The aforecited authorities are clear on the matter. They state
that the doctrine of immunity from suit will not apply and
may not be invoked where the public official is being sued
in his private and personal capacity as an ordinary citizen.
The cloak of protection afforded the officers and agents of the
government is removed the moment they are sued in their
individual capacity. This situation usually arises where the public
official acts without authority or in excess of the powers vested in
him. It is a well-settled principle of law that a public official
may be liable in his personal private capacity for whatever
damage he may have caused by his act done with malice
and in bad faith, or beyond the scope of his authority or
jurisdiction.26 (Emphasis supplied)
_______________
26 Id., at pp. 727-728.
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In this case, the US respondents were sued in their

official capacity as commanding officers of the US Navy
who had control and supervision over the USS Guardian
and its crew. The alleged act or omission resulting in the
unfortunate grounding of the USS Guardian on the TRNP
was committed while they were performing official military
duties. Considering that the satisfaction of a judgment
against said officials will require remedial actions and
appropriation of funds by the US government, the suit is
deemed to be one against the US itself. The principle of
State immunity therefore bars the exercise of jurisdiction
by this Court over the persons of respondents Swift, Rice

and Robling.
During the deliberations, Senior Associate Justice
Antonio T. Carpio took the position that the conduct of the
US in this case, when its warship entered a restricted area
in violation of R.A. No. 10067 and caused damage to the
TRNP reef system, brings the matter within the ambit of
Article 31 of the United Nations Convention on the Law of
the Sea (UNCLOS). He explained that while historically,
warships enjoy sovereign immunity from suit as extensions
of their flag State, Art. 31 of the UNCLOS creates an
exception to this rule in cases where they fail to comply
with the rules and regulations of the coastal State
regarding passage through the latter’ s internal waters and
the territorial sea.
According to Justice Carpio, although the US to date has
not ratified the UNCLOS, as a matter of long-standing
policy the US considers itself bound by customary
international rules on the “traditional uses of the oceans”
as codified in UNCLOS, as can be gleaned from previous
declarations by former Presidents Reagan and Clinton, and
the US judiciary in the case of United States v. Royal
Caribbean Cruise Lines, Ltd.27
_______________
27 24 F Supp. 2d 155, 159 (D.P.R. 1997).
136

Arigo vs. Swift
The international law of the sea is generally defined as

“a body of treaty rules and customary norms governing the
uses of the sea, the exploitation of its resources, and the
exercise of jurisdiction over maritime regimes. It is a
branch of public international law, regulating the relations
of states with respect to the uses of the oceans.”28 The
UNCLOS is a multilateral treaty which was opened for
signature on December 10, 1982 at Montego Bay, Jamaica.
It was ratified by the Philippines in 1984 but came into
force on November 16, 1994 upon the submission of the
60th ratification.
The UNCLOS is a product of international negotiation
that seeks to balance State sovereignty (mare clausum) and
the principle of freedom of the high seas (mare liberum).29
The freedom to use the world’s marine waters is one of the
oldest customary principles of international law.30 The

UNCLOS gives to the coastal State sovereign rights in
varying degrees over the different zones of the sea which
are: 1) internal waters, 2) territorial sea, 3) contiguous
zone, 4) exclusive economic zone, and 5) the high seas. It
also gives coastal States more or less jurisdiction over
foreign vessels depending on where the vessel is located.31

Insofar as the internal waters and territorial sea is
concerned, the Coastal State exercises sovereignty, subject
to the UNCLOS and other rules of international law. Such
sovereignty extends to the air space over the territorial sea
as well as to its bed and subsoil.32
_______________
28 Magallona, Merlin M., A Primer on the Law of the Sea, p. 1, (1997).
29 Bertrand Theodor L. Santos, “Untangling a Tangled Net of

Confusion: Reconciling the Philippine Fishery Poaching Law and the
UNCLOS,” World Bulletin, Vol. 18: 83-116, p. 96 (July-December 2002).
30 Anne Bardin, “Coastal State’s Jurisdiction Over Foreign Vessels,” 14
Pace Int’l. Rev. 27, 28 (2002).
31 Id., at p. 29.
32 Art. 2, UNCLOS.
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In the case of warships,33 as pointed out by Justice

Carpio, they continue to enjoy sovereign immunity subject
to the following exceptions:
33 Art. 29 of UNCLOS defines warship as “a ship
belonging to the armed forces of a State bearing the
external marks distinguishing such ships of its nationality,
under the command of an officer duly commissioned by the
government of the State and whose name appears in the
appropriate service list or its equivalent, and manned by a
crew which is under regular armed forces discipline.”
Article 30
Noncompliance by warships with the laws and regulations of
the coastal State
If any warship does not comply with the laws and regulations
of the coastal State concerning passage through the territorial sea
and disregards any request for compliance therewith which is
made to it, the coastal State may require it to leave the territorial
sea immediately.
Article 31
Responsibility of the flag State for damage caused by a warship
or other government ship operated for
noncommercial purposes
The flag State shall bear international responsibility for any
loss or damage to the coastal State resulting from the
noncompliance by a warship or other government ship operated
for noncommercial purposes with the laws and regulations of
the coastal State concerning passage through the
territorial sea or with the provisions of this Convention or other
rules of international law.
Article 32
Immunities of warships and other government ships operated
for noncommercial purposes
With such exceptions as are contained in subsection A and in
Articles 30 and 31, nothing in this Conven-
138

Arigo vs. Swift
tion affects the immunities of warships and other government

ships operated for noncommercial purposes. (Emphasis supplied)

A foreign warship’s unauthorized entry into our internal
waters with resulting damage to marine resources is one
situation in which the above provisions may apply. But
what if the offending warship is a nonparty to the
UNCLOS, as in this case, the US?
An overwhelming majority — over 80% — of nation
states are now members of UNCLOS, but despite this the
US, the world’s leading maritime power, has not ratified it.
While the Reagan administration was instrumental in

UNCLOS’ negotiation and drafting, the U.S. delegation ultimately
voted against and refrained from signing it due to concerns over
deep seabed mining technology transfer provisions contained in
Part XI. In a remarkable, multilateral effort to induce U.S.
membership, the bulk of UNCLOS member states cooperated over
the succeeding decade to revise the objectionable provisions. The
revisions satisfied the Clinton administration, which signed the
revised Part XI implementing agreement in 1994. In the fall of
1994, President Clinton transmitted UNCLOS and the Part XI
implementing agreement to the Senate requesting its advice and
consent. Despite consistent support from President Clinton, each
of his successors, and an ideologically diverse array of

stakeholders, the Senate has since withheld the consent required
for the President to internationally bind the United States to
UNCLOS.
While UNCLOS cleared the Senate Foreign Relations
Committee (SFRC) during the 108th and 110th Congresses, its
progress continues to be hamstrung by significant pockets of
political ambivalence over U.S. participation in international
institutions. Most recently, 111th Congress SFRC Chairman
Senator John Kerry included “voting out” UNCLOS for full Senate
consideration among his highest priorities. This did not occur, and
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no Senate action has been taken on UNCLOS by the 112th

Congress.34
Justice Carpio invited our attention to the policy

statement given by President Reagan on March 10, 1983
that the US will “recognize the rights of the other states in
the waters off their coasts, as reflected in the convention
[UNCLOS], so long as the rights and freedom of the United
States and others under international law are recognized
by such coastal states,” and President Clinton’s reiteration
of the US policy “to act in a manner consistent with its
[UNCLOS] provisions relating to traditional uses of the
oceans and to encourage other countries to do likewise.”
Since Article 31 relates to the “traditional uses of the
oceans,” and “if under its policy, the US ‘recognize[s] the
rights of the other states in the waters off their coasts,’
“Justice Carpio postulates that “there is more reason to
expect it to recognize the rights of other states in their
internal waters, such as the Sulu Sea in this case.”
As to the non-ratification by the US, Justice Carpio
emphasizes that “the US’ refusal to join the UNCLOS was
centered on its disagreement with UNCLOS’ regime of
deep seabed mining (Part XI) which considers the oceans
and deep seabed commonly owned by mankind,” pointing
out that such “has nothing to do with its [the US’]
acceptance of customary international rules on navigation.”
It may be mentioned that even the US Navy Judge
Advocate General’s Corps publicly endorses the ratification
of the UNCLOS, as shown by the following statement
posted on its official website:
The Convention is in the national interest of the United States

because it establishes stable maritime zones, including a
maximum outer limit for territorial seas; codi-
_______________
34 Commander Robert C. “Rock” De Tolve, JAGC, USN, “At What Cost? America’s
UNCLOS Allergy in the Time of ‘Lawfare,” 61 Naval L. Rev. 1, 3 (2012).
140

Arigo vs. Swift
fies innocent passage, transit passage, and archipelagic sea lanes

passage rights; works against “jurisdictional creep” by preventing
coastal nations from expanding their own maritime zones; and
reaffirms sovereign immunity of warships, auxiliaries and
government aircraft.
xxxx
Economically, accession to the Convention would support our
national interests by enhancing the ability of the US to assert its
sovereign rights over the resources of one of the largest
continental shelves in the world. Further, it is the Law of the Sea
Convention that first established the concept of a maritime
Exclusive Economic Zone out to 200 nautical miles, and
recognized the rights of coastal states to conserve and manage the
natural resources in this Zone.35
We fully concur with Justice Carpio’s view that

nonmembership in the UNCLOS does not mean that the
US will disregard the rights of the Philippines as a Coastal
State over its internal waters and territorial sea. We thus
expect the US to bear “international responsibility” under
Art. 31 in connection with the USS Guardian grounding
which adversely affected the Tubbataha reefs. Indeed, it is
difficult to imagine that our long-time ally and trading
partner, which has been actively supporting the country’s
efforts to preserve our vital marine resources, would shirk
from its obligation to compensate the damage caused by its
warship while transiting our internal waters. Much less
can we comprehend a Government exercising leadership in
international affairs, unwilling to comply with the
UNCLOS directive for all nations to cooperate in the global
task to protect and preserve the marine environment as
provided in Article 197, viz.:
_______________
35 <http://www.jag.navy.mil/organization/code 10 law of the sea.htm>.
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Article 197
Cooperation on a global or regional basis
States shall cooperate on a global basis and, as appropriate, on
a regional basis, directly or through competent international
organizations, in formulating and elaborating international rules,
standards and recommended practices and procedures consistent
with this Convention, for the protection and preservation of the
marine environment, taking into account characteristic regional
features.

In fine, the relevance of UNCLOS provisions to the
present controversy is beyond dispute. Although the said
treaty upholds the immunity of warships from the
jurisdiction of Coastal States while navigating the latter’s
territorial sea, the flag States shall be required to leave the
territorial sea immediately if they flout the laws and
regulations of the Coastal State, and they will be liable for
damages caused by their warships or any other government
vessel operated for noncommercial purposes under Article
31.
Petitioners argue that there is a waiver of immunity
from suit found in the VFA. Likewise, they invoke federal
statutes in the US under which agencies of the US have
statutorily waived their immunity to any action. Even
under the common law tort claims, petitioners asseverate
that the US respondents are liable for negligence, trespass
and nuisance.
We are not persuaded.
The VFA is an agreement which defines the treatment of
United States troops and personnel visiting the Philippines
to promote “common security interests” between the US
and the Philippines in the region. It provides for the
guidelines to govern such visits of military personnel, and
further defines the rights of the United States and the
Philippine government in the matter of criminal
jurisdiction, movement of vessel and aircraft, importation
and exportation of equipment, materials
142

Arigo vs. Swift
and supplies.36 The invocation of US federal tort laws and

even common law is thus improper considering that it is
the VFA which governs disputes involving US military
ships and crew navigating Philippine waters in pursuance
of the objectives of the agreement.
As it is, the waiver of State immunity under the VFA
pertains only to criminal jurisdiction and not to special civil
actions such as the present petition for issuance of a writ of
Kalikasan. In fact, it can be inferred from Section 17, Rule
7 of the Rules that a criminal case against a person
charged with a violation of an environmental law is to be
filed separately:
SEC. 17. Institution of separate actions.—The filing of a

petition for the issuance of the writ of kalikasan shall not
preclude the filing of separate civil, criminal or administrative
actions.
In any case, it is our considered view that a ruling on

the application or non-application of criminal jurisdiction
provisions of the VFA to US personnel who may be found
responsible for the grounding of the USS Guardian, would
be premature and beyond the province of a petition for a
writ of Kalikasan. We also find it unnecessary at this point
to determine whether such waiver of State immunity is
indeed absolute. In the same vein, we cannot grant
damages which have resulted from the violation of
environmental laws. The Rules allows the recovery of
damages, including the collection of administrative fines
under R.A. No. 10067, in a separate civil suit or that
deemed instituted with the criminal action charging the
same violation of an environmental law.37
_______________
36 See BAYAN (Bagong Alyansang Makabayan) v. Exec. Sec. Zamora,

396 Phil. 623, 652; 342 SCRA 449, 483 (2000).
37 Rule 10, Rules of Procedure for Environmental Cases.
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Arigo vs. Swift
Section 15, Rule 7 enumerates the reliefs which may be

granted in a petition for issuance of a writ of Kalikasan, to
wit:
SEC. 15. Judgment.—Within sixty (60) days from the time

the petition is submitted for decision, the court shall render
judgment granting or denying the privilege of the writ of
kalikasan.
The reliefs that may be granted under the writ are the
following:
(a) Directing respondent to permanently cease and desist from
committing acts or neglecting the performance of a duty in
violation of environmental laws resulting in environmental
destruction or damage;
(b) Directing the respondent public official, government agency,
private person or entity to protect, preserve, rehabilitate or
restore the environment;
(c) Directing the respondent public official, government agency,
private person or entity to monitor strict compliance with the
decision and orders of the court;
(d) Directing the respondent public official, government agency,
or private person or entity to make periodic reports on the
execution of the final judgment; and
(e) Such other reliefs which relate to the right of the people to a
balanced and healthful ecology or to the protection, preservation,
rehabilitation or restoration of the environment, except the
award of damages to individual petitioners. (Emphasis
supplied)
We agree with respondents (Philippine officials) in

asserting that this petition has become moot in the sense
that the salvage operation sought to be enjoined or
restrained had already been accomplished when petitioners
sought recourse from this Court. But insofar as the
directives to Philippine respondents to protect and
rehabilitate the coral reef structure and marine habitat
adversely affected by the grounding incident are concerned,
petitioners are entitled to these reliefs
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Arigo vs. Swift
notwithstanding the completion of the removal of the USS

Guardian from the coral reef.
However, we are mindful of the fact that the US and
Philippine governments both expressed readiness to
negotiate and discuss the matter of compensation for the

damage caused by the USS Guardian. The US Embassy
has also declared it is closely coordinating with local
scientists and experts in assessing the extent of the
damage and appropriate methods of rehabilitation.
Exploring avenues for settlement of environmental cases
is not proscribed by the Rules. As can be gleaned from the
following provisions, mediation and settlement are
available for the consideration of the parties, and which
dispute resolution methods are encouraged by the court, to
wit:

RULE 3
xxxx
SEC. 3. Referral to mediation.—At the start of the pre-trial
conference, the court shall inquire from the parties if they have
settled the dispute; otherwise, the court shall immediately refer
the parties or their counsel, if authorized by their clients, to the
Philippine Mediation Center (PMC) unit for purposes of
mediation. If not available, the court shall refer the case to the
clerk of court or legal researcher for mediation.
Mediation must be conducted within a non-extendible period of
thirty (30) days from receipt of notice of referral to mediation.
The mediation report must be submitted within ten (10) days
from the expiration of the 30-day period.
SEC. 4. Preliminary conference.—If mediation fails, the court
will schedule the continuance of the pre-trial. Before the
scheduled date of continuance, the court may refer the case to the
branch clerk of court for a preliminary conference for the
following purposes:
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Arigo vs. Swift
(a) To assist the parties in reaching a settlement;

xxxx
SEC. 5. Pre-trial conference; consent decree.—The judge shall
put the parties and their counsels under oath, and they shall
remain under oath in all pre-trial conferences.
The judge shall exert best efforts to persuade the parties to
arrive at a settlement of the dispute. The judge may issue a
consent decree approving the agreement between the parties in
accordance with law, morals, public order and public policy to
protect the right of the people to a balanced and healthful ecology.
xxxx
SEC. 10. Efforts to settle.—The court shall endeavor to make

the parties to agree to compromise or settle in accordance with
law at any stage of the proceedings before rendition of judgment.
(Underscoring supplied)
The Court takes judicial notice of a similar incident in

2009 when a guided-missile cruiser, the USS Port Royal,
ran a ground about half a mile off the Honolulu Airport
Reef Runway and remained stuck for four days. After
spending $6.5 million restoring the coral reef, the US
government was reported to have paid the State of Hawaii
$8.5 million in settlement over coral reef damage caused by
the grounding.38

To underscore that the US government is prepared to
pay appropriate compensation for the damage caused by
the USS Guardian grounding, the US Embassy in the
Philippines has announced the formation of a US
interdisciplinary scientific
_______________
38 “USS Port Royal (CG73)” <http://navysite.de/cg/cg73.html>; “USS

Port Royal Returns to Homeport,” Navy Military Home Page, Story
Number NNS090211-02 Release Date: 2/11/2009 6:00 AM
<http://www.navy.mil/submit/display.asp?story_id=42502>; “Navy, state
reach settlement on USS Port Royal damage,” posted Feb. 05, 2011 8:26
AM <http://www.hawaiinewsnow.com/story/13974224/navy-state-reach-
settlement-on-uss-port-royal-reef-damage>.
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Arigo vs. Swift
team which will “initiate discussions with the Government

of the Philippines to review coral reef rehabilitation options
in Tubbataha, based on assessments by Philippine-based
marine scientists.” The US team intends to “help assess
damage and remediation options, in coordination with the
Tubbataha Management Office, appropriate Philippine
government entities, nongovernmental organizations, and
scientific experts from Philippine universities.”39
A rehabilitation or restoration program to be
implemented at the cost of the violator is also a major relief
that may be obtained under a judgment rendered in a
citizens’ suit under the Rules, viz.:
RULE 5
SECTION 1. Reliefs in a citizen suit.—If warranted, the court
may grant to the plaintiff proper reliefs which shall include the
protection, preservation or rehabilitation of the environment and
the payment of attorney’s fees, costs of suit and other litigation
expenses. It may also require the violator to submit a program of
rehabilitation or restoration of the environment, the costs of
which shall be borne by the violator, or to contribute to a special
trust fund for that purpose subject to the control of the court.
In the light of the foregoing, the Court defers to the

Executive Branch on the matter of compensation and
rehabilitation measures through diplomatic channels.
Resolution of these issues impinges on our relations with
another State in the context of common security interests
under the VFA. It is settled that “[t]he conduct of the
foreign relations of our government is committed by the
Constitution to the executive and legislative — ‘the
political’ — departments of the government, and the
propriety of what may be done in the exer-
_______________
39
<http://manila.usembassy.gov/usgtargetedassistancetubbataha.html>.
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Arigo vs. Swift
cise of this political power is not subject to judicial inquiry

or decision.”40

On the other hand, we cannot grant the additional
reliefs prayed for in the petition to order a review of the
VFA and to nullify certain immunity provisions thereof.
As held in BAYAN (Bagong Alyansang Makabayan) v.
Exec. Sec. Zamora,41 the VFA was duly concurred in by the
Philippine Senate and has been recognized as a treaty by
the United States as attested and certified by the duly
authorized representative of the United States
government. The VFA being a valid and binding
agreement, the parties are required as a matter of
international law to abide by its terms and provisions.42
The present petition under the Rules is not the proper
remedy to assail the constitutionality of its provisions.

WHEREFORE, the petition for the issuance of the

privilege of the Writ of Kalikasan is hereby DENIED.
No pronouncement as to costs.
SO ORDERED.
Carpio, Velasco, Jr., Leonardo-De Castro, Brion,

Peralta, Bersamin, Del Castillo, Perez, Reyes and Perlas-
Bernabe, JJ., concur.
Sereno, CJ., See Concurring Opinion.
Mendoza, J., On Official Leave.
Leonen, J., See Separate Concurring Opinion.
Jardeleza, J., No Part.
_______________
40 Vinuya v. Romulo, G.R. No. 162230, April 28, 2010, 619 SCRA 533,
559, citing Oetjen v. Central Leather Co., 246 U.S. 297, 302 (1918).
41 Supra note 36.
42 Nicolas v. Secretary Romulo, et al., 598 Phil. 262, 280 & 285; 578
SCRA 438, 462 (2009).
148

Arigo vs. Swift
CONCURRING OPINION

SERENO, CJ.:

I concur.
Sovereign immunity serves as a bar for the foreign
sovereign to be subjected to the trial process. Supported
both by local jurisprudence, as well as international law
(which forms part of the Philippine legal structure), the
doctrine should not be reversed in this particular case.

Sovereign Immunity in Philippine Law

Sovereign immunity in Philippine law has been
lengthily discussed by the Court in China National
Machinery & Equipment Corp. v. Hon. Santamaria in the
following manner:
This Court explained the doctrine of sovereign immunity in

Holy See v. Rosario, to wit:
There are two conflicting concepts of sovereign immunity, each
widely held and firmly established. According to the
classical or absolute theory, a sovereign cannot, without its

consent, be made a respondent in the courts of another sovereign.
According to the newer or restrictive theory, the immunity of the
sovereign is recognized only with regard to public acts or acts jure
imperii of a state, but not with regard to private acts or acts jure
gestionis.
xxxx
The restrictive theory came about because of the entry of
sovereign states into purely commercial activities remotely
connected with the discharge of governmental functions. This is
particularly true with respect to the Communist states which took
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control of nationalized business activities and international

trading.
In JUSMAG v. National Labor Relations Commission, this
Court affirmed the Philippines’ adherence to the restrictive theory
as follows:
The doctrine of state immunity from suit has undergone
further metamorphosis. The view evolved that the existence of a
contract does not, per se, mean that sovereign states may, at all
times, be sued in local courts. The complexity of relationships
between sovereign states, brought about by their increasing
commercial activities, mothered a more restrictive application of
the doctrine.
xxxx
As it stands now, the application of the doctrine of
immunity from suit has been restricted to sovereign or
governmental activities (jure imperii). The mantle of state
immunity cannot be extended to commercial, private and
proprietary acts (jure gestionis).
Since the Philippines adheres to the restrictive theory, it is
crucial to ascertain the legal nature of the act involved —
whether the entity claiming immunity performs
governmental, as opposed to proprietary, functions. As held
in United States of America v. Ruiz —
The restrictive application of State immunity is proper only
when the proceedings arise out of commercial transactions of the
foreign sovereign, its commercial activities or economic affairs.
Stated differently, a State may be said to have descended to the
level of an individual and can thus be deemed to have tacitly
given its consent to be sued only when it enters into business
contracts. It does not
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apply where the contract relates to the exercise of its sovereign

functions.1 (Emphases supplied. Citations omitted)

From the Philippine perspective, what determines its
ability to impose its law upon the foreign entity would be
the act of the foreign entity — on whether the act is an
aspect of its sovereign function or a private act.
In this case, the two Naval Officers were acting
pursuant to their function as the commanding officers of a
warship, traversing Philippine waters under the authority
of the Visiting Forces Agreement (VFA). While the events
beg the question of what the warship was doing in that
area, when it should have been headed towards Indonesia,
its presence in Philippine waters is not wholly
unexplainable. The VFA is a treaty, and it has been
affirmed as valid by this Court in Bayan v. Zamora,2 and
affirmed in Lim v. Executive Secretary3 and Nicolas v.
Romulo.4 It has, in the past, been used to justify the
presence of United States Armed Forces in the Philippines.
In this respect therefore, acts done pursuant to the VFA
take the nature of governmental acts, since both the United
States and Philippine governments recognize the VFA as a
treaty with corresponding obligations, and the presence of
these two Naval Officers and the warship in Philippine
waters fell under this legal regime.
From this, the applicability of sovereign immunity
cannot be denied as to the presence of the warship and its
officers in Philippine waters. This does not, however, put
an end to the discussion, because even if immunity is
applicable to their presence, the specific act of hitting the
Tubbataha Reef and causing damage thereto is a
presumably tortuous act. Can
_______________
1 G.R. No. 185572, February 7, 2012, 665 SCRA 189.

2 G.R. No. 138570, October 10, 2000, 342 SCRA 449.
3 G.R. No. 151445, April 11, 2002, 380 SCRA 739.
4 G.R. No. 175888, February 11, 2009, 578 SCRA 438.
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these kinds of acts also be covered by the principle of

sovereign immunity?

Tort Exception

Under the regime of international law, there is an added
dimension to sovereign immunity exceptions: the tort
exception. Whether this has evolved into a customary norm
is still debatable; what is important to emphasize is that
while some states have enacted legislation to allow the
piercing of sovereign immunity in tortuous actions, the
Foreign Sovereign Immunities Act of 1976 of the United
States (FSIA)5 contains such privilege. Specifically, the
FSIA contains exceptions for (1) waiver;6 (2) commercial
activity;7 (3) expropriation;8 (4) property rights acquired
through succession or donation;9 (5) damages for personal
injury or death or damage to or loss of property;10 (6)
enforcement of an arbitration agreement;11 (7) torture,
extrajudicial killing, aircraft sabotage, hostage taking, or
the provision of material support to such an act, if the state
sponsors terrorism;12 and (8) maritime lien in a suit for
admiralty based on commercial activity.13
Any claim under the FSIA goes through a hierarchical
process between the diplomatic channels of the United
States and the forum state. However, by explicitly
including the tort exception in its local legislation under
the 4th exception discussed above — with due consideration
to the heavy require-
_______________
5 Pub. L. 94-583, 90 Stat. 2891, 28 U.S.C. Secs. 1330, 1332(a), 1391(f)
and 1601-1611.
6 Id., Sec. 1605(a)(1).
7 Id., Sec. 1605(a)(2).
8 Id., Sec. 1605(a)(3).
9 Id., Sec. 1605(a)(4).
10 Id., Sec. 1605(a)(5).
11 Id., Sec. 1605(a)(6).
12 Id., Sec. 1605(a)(7).
13 Id., Sec. 1605(b).
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ments for any doctrine to attain customary status — it

becomes plausible that the exception can be applied to the
United States, if not through customary international law,
then by reason of acquiescence or estoppel.
As explained by Jasper Finke,
x x x x the current state practice may not support a rule of

customary international law according to which states must deny
sovereign immunity in case of tortious acts committed by another
country in the forum state. Even though such an obligation is
included in the ECSI and the UNCJIS, a considerable number of
states do not apply this exception. But this does not answer the
question whether states are prohibited from doing so. Section
1605 of the FSIA, for example, denies immunity in cases ‘in which
money damages are sought … for personal injury or death, or
damage to or loss of property, occurring in the United States and
caused by the tortious act or omission of that foreign state.’ If
sovereign immunity is the default rule and all exceptions must
reflect customary international law, and if the tort exception has
not yet evolved into custom, then states such as the US, UK,
Canada, and Australia that have included the tort exception in
their national immunity laws automatically violate international
law — a conclusion which no commentator so far has suggested.
But if states that enact this exception as law do not violate
international law, why then should a state do so if its
courts apply this exception not on the basis of national
law, but on the basis of how they construe and interpret
the doctrine of sovereign immunity under international
law?14 (Emphasis supplied)
What Finke suggests is that a local court need not find

the tort exception concept in its national law if it can
interpret the doctrine from its understanding of
international law. Can
_______________
14 Jasper Finke, Sovereign Immunity: Rule, Comity or Something

Else? Eur J Int Law (2010) 21(4), 863-864.
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the Philippines then interpret the exception as being part

of its acceptance of “general principles of international law”
under the Constitution?15

Sovereign Immunity as a Political Decision

In Vinuya v. Romulo, we stated that “the question
whether the Philippine government should espouse claims
of its nationals against a foreign government is a foreign
relations matter, the authority for which is demonstrably
committed by our Constitution not to the courts but to the
political branches.”16 Immunity then, unlike in other
jurisdictions, is determined not by the courts of law but by
the executive branches. Indeed, this was extensively
discussed in Chief Justice Puno’s concurring opinion in
Liang v. People, to wit:
Petitioner’s argument that a determination by the Department

of Foreign Affairs that he is entitled to diplomatic immunity is a
political question binding on the courts, is anchored on the ruling
enunciated in the case of WHO, et al. v. Aquino, et al., viz.:
“It is a recognized principle of international law and
under our system of separation of powers that diplomatic
immunity is essentially a political question and courts
should refuse to look beyond a determination by the
executive branch of the government, and where the plea of
diplomatic immunity is recognized and affirmed by the executive
branch of the government as in the case at bar, it is then the duty
of the courts to accept the claim of immunity upon appropriate
suggestion by the principal law officer of the government, the
Solicitor General in this case, or other officer acting under his
direction. Hence, in adher-
_______________
15 Article II, Sec. 2, 1987 Constitution.

16 G.R. No. 162230, April 28, 2010, 619 SCRA 533.
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Arigo vs. Swift
ence to the settled principle that courts may not so

exercise their jurisdiction by seizure and detention of
property, as to embarrass the executive arm of the
government in conducting foreign relations, it is accepted
doctrine that in such cases the judicial department of the
government follows the action of the political branch and
will not embarrass the latter by assuming an antagonistic
jurisdiction.”
This ruling was reiterated in the subsequent cases of

International Catholic Migration Commission v. Calleja; The Holy
See v. Rosario, Jr; Lasco v. UN; and DFA v. NLRC.
The case of WHO v. Aquino involved the search and seizure of
personal effects of petitioner Leonce Verstuyft, an official of the
WHO. Verstyft was certified to be entitled to diplomatic immunity
pursuant to the Host Agreement executed between the
Philippines and the WHO.
ICMC v. Calleja concerned a petition for certification election
filed against ICMC and IRRI. As international organizations,
ICMC and IRRI were declared to possess diplomatic immunity. It
was held that they are not subject to local jurisdictions. It was
ruled that the exercise of jurisdiction by the Department of Labor
over the case would defeat the very purpose of immunity, which is
to shield the affairs of international organizations from political
pressure or control by the host country and to ensure the
unhampered performance of their functions.
In Holy See v. Rosario, Jr. involved an action for annulment of
sale of land against the Holy See, as represented by the Papal
Nuncio. The Court upheld the petitioner’s defense of sovereign
immunity. It ruled that where a diplomatic envoy is granted
immunity from the civil and administrative jurisdiction of the
receiving state over any real action relating to private immovable
property situated in the territory of the receiving state, which the
envoy holds on behalf of the sending state for the
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purposes of the mission, with all the more reason should

immunity be recognized as regards the sovereign itself, which in
that case is the Holy See.
In Lasco v. United Nations, the United Nations Revolving
Fund for Natural Resources Exploration was sued before the
NLRC for illegal dismissal. The Court again upheld the doctrine
of diplomatic immunity invoked by the Fund.
Finally, DFA v. NLRC involved an illegal dismissal case filed
against the Asian Development Bank. Pursuant to its Charter
and the Headquarters Agreement, the diplomatic immunity of the
Asian Development Bank was recognized by the Court.
xxxx
Clearly, the most important immunity to an international
official, in the discharge of his international functions, is
immunity from local jurisdiction. There is no argument in
doctrine or practice with the principle that an international
official is independent of the jurisdiction of the local authorities
for his official acts. Those acts are not his, but are imputed to the
organization, and without waiver the local courts cannot hold him
liable for them. In strict law, it would seem that even the
organization itself could have no right to waive an official’s
immunity for his official acts. This permits local authorities to
assume jurisdiction over and individual for an act which is not, in
the wider sense of the term, his act at all. It is the organization
itself, as a juristic person, which should waive its own immunity
and appear in court, not the individual, except insofar as he
appears in the name of the organization. Provisions for immunity
from jurisdiction for official acts appear, aside from the
aforementioned treatises, in the constitution of most modern
international organizations. The acceptance of the principle is
sufficiently widespread to be regarded as declaratory of
international law.17 (Emphasis supplied)
_______________
17 G.R. No. 125865, 26 March 2001, 355 SCRA 125.
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Arigo vs. Swift
In this view, the prudent interpretation of the tort

exception would be to allow the executive branch to first
determine whether diplomatic or sovereign immunity can
be invoked by the foreign officials involved. If it can be
invoked, then the next analysis should be whether this
invoked immunity is absolute, as in the treatment of
diplomatic envoys. If it is not absolute, then and only then
can the Court weave the tort exception into the law of
sovereign immunity and thus attain jurisdiction over the
Naval Officers involved. This is important because the
practice has been to afford the foreign entity absolute
immunity, but withdraw the same from its personnel when
they commit private acts.

Sovereign Immunity Under International Law

The basic concept of state immunity is that no state may
be subjected to the jurisdiction of another state without its
consent.18 According to Professor Ian Brownlie, it is “a
procedural bar (not a substantive defence) based on the
status and functions of the state or official in question.”19
Furthermore, its applicability depends on the law and
procedural rules of the forum state.20 In the recent
judgment of the International Court of Justice (ICJ) in the

Jurisdictional Immunities of the State (Germany v. Italy:
Greece Intervening) case,21 the doctrine of sovereign
immunity was applied in the following context:

In 1995, successors in title of the victims of the Distomo
massacre, committed by the German armed forces in a
Greek village in June 1944, brought proceedings for
compensation
_______________
18 J-Maurice Arbour & Genevieve Parents, Droit International Public,

5th ed., p. 331, (2006).
19 James Crawford, Brownlie’s Principles of Public International Law,
8th ed., p. 487, (2012).
20 Id., at p. 488.
21 Jurisdictional Immunities of the State (Germany v. Italy),
Judgment (Feb. 3, 2012).
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against Germany before the Greek courts. The Greek court

ordered Germany to pay compensation to the claimants.
The appeal by Germany against that judgment was
dismissed by a decision of the Hellenic Supreme Court,
which ordered Germany to pay the costs of the appeal
proceedings. The successful Greek claimants under the
first instance and Supreme Court judgments applied to the
Italian courts for exequatur of those judgments, so as to be
able to have them enforced in Italy. This was allowed by
the Florence Court of Appeals and confirmed by the Italian
Court of Cassation.
Germany raised the dispute before the ICJ, claiming
these decisions constituted violations of its jurisdictional
immunity.
The ICJ analyzed the case from the vantage point of
immunity, such that the jurisdictional immunity of states
refers primarily to an immunity from the trial process and
is thus preliminary in character, as stated in the following
manner:
At the outset, however, the Court must observe that the

proposition that the availability of immunity will be to some
extent dependent upon the gravity of the unlawful act presents a
logical problem. Immunity from jurisdiction is an immunity

not merely from being subjected to an adverse judgment
but from being subjected to the trial process. It is, therefore,
necessarily preliminary in nature. Consequently, a national court
is required to determine whether or not a foreign State is entitled
to immunity as a matter of international law before it can hear
the merits of the case brought before it and before the facts have
been established. If immunity were to be dependent upon the
State actually having committed a serious violation of
international human rights law or the law of armed conflict, then
it would become necessary for the national court to hold an
enquiry into the merits in order to determine whether it had
jurisdiction. If, on the other hand, the mere allegation that the
State had committed such wrongful acts were to be sufficient to
deprive the State of its entitlement to immunity, immunity could,
in effect be negated
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simply by skilful construction of the claim.22 (Emphasis supplied

The ICJ continued dissecting national law in order to
determine whether jurisdictional immunity could be
defeated by reason of serious violations of human rights
law or the law of armed conflict. In this, the ICJ clearly
saw that there was no customary international law norm
that led to the defeat of immunity by reason of these
violations, including the tort exception, viz.:
Apart from the decisions of the Italian courts which are the
subject of the present proceedings, there is almost no State
practice which might be considered to support the proposition
that a State is deprived of its entitlement to immunity in such a
case. Although the Hellenic Supreme Court in the Distomo case
adopted a form of that proposition, the Special Supreme Court in
Margellos repudiated that approach two years later. As the Court
has noted in paragraph 76 above, under Greek law it is the stance
adopted in Margellos which must be followed in later cases unless
the Greek courts find that there has been a change in customary
international law since 2002, which they have not done. As with
the territorial tort principle, the Court considers that
Greek practice, taken as a whole, tends to deny that the
proposition advanced by Italy has become part of
customary international law.
In addition, there is a substantial body of State practice

from other countries which demonstrates that customary
international law does not treat a State’s entitlement to
immunity as dependent upon the gravity of the act of
which it is accused or the peremptory nature of the rule
which it is alleged to have violated.23 (Emphasis supplied)
_______________
22 Id., at p. 82.

23 Id., at pp. 83-84.
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As things stand in the international sphere, the

immunity of the state (and by extension, its agents, in the
performance of their governmental functions jure imperii)
must stand against even serious violations of international
law, including breaches of international environmental law
(which is an aspect of human rights law as well). The ICJ
concluded that:
x x x [U]nder customary international law as it presently

stands, a State is not deprived of immunity by reason of the fact
that it is accused of serious violations of international human
rights law or the international law of armed conflict. In reaching
that conclusion, the Court must emphasize that it is addressing
only the immunity of the State itself from the jurisdiction of the
courts of other States; the question of whether, and if so to what
extent, immunity might apply in criminal proceedings against an
official of the State is not in issue in the present case.24

This does not mean that the act of the state is to be
considered lawful. However, this also does not mean that
state immunity is waived in the context of an international
breach of even a jus cogens norm, as explained in this
manner:
The rules of State immunity are procedural in character and

are confined to determining whether or not the courts of one State
may exercise jurisdiction in respect of another State. They do not
bear upon the question whether or not the conduct in respect of
which the proceedings are brought was lawful or unlawful. That
is why the application of the contemporary law of State immunity
to proceedings concerning events which occurred in 1943-1945
does not infringe the principle that law should not be applied
retrospectively to determine matters of legality and responsibility
(as the Court has explained in paragraph 58 above). For the same
reason, recognizing the immunity of a foreign State in accordance
_______________
24 Id., at p. 91.
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with customary international law does not amount to recognizing

as lawful a situation created by the breach of a jus cogens rule, or
rendering aid and assistance in maintaining that situation, and so
cannot contravene the principle in Article 41 of the International
Law Commission’s Articles on State Responsibility.25
Conclusion of Jurisdictional Arguments

and Immunity

What the Court is left to work with is a process by which
jurisdiction and immunity can be determined by answering
several questions, summated thusly:
1. Is the act of the foreign national or entity an act jure
imperii, such that it can be considered an act of state
entitled to immunity, or an act jure gestionis, in which case
it is to be considered a private act?
2. In respect of the above question, has the executive
branch, in the exercise of its political power, determined
whether absolute diplomatic immunity is applicable?
3. If it is an act jure imperii and thus entitled to
sovereign immunity, does an exception apply to withdraw
the immunity privilege of such acts?
In this case, it is apparent that the act of the U.S.S.
Guardian and its officers in entering Philippine waters is
allowed by the VFA, and as a treaty privilege should be
considered an act jure imperii. Its deviation into the waters
of Tubbataha, and whether this can be considered a private
act, is a factual issue that should be determined by the
proper body. Indeed, while Philippine authorities may not
have authorized the deviation, if the United States
government affirms that it gave the Guardian sufficient
discretion to determine its course, then the act is not
necessarily robbed of its jure imperii character
_______________
25 Id., at p. 93.
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and is thus entitled to immunity. The course of action of

the Philippine government would be to engage in
diplomatic negotiations for potential treaty breach liability.
As of this moment, the executive branch has not made a
determination of the applicable immunity. No
correspondence has been sent to the Court as to the issue.
Thus, the Court must act in deference to the executive
prerogative to first make this determination under the
presumption of regularity of performance of duties, before
it can exercise its judicial power.
Finally, no exception exists in Philippine or
international law that would remove the immunity of the
United States in order to place it under the jurisdiction of
Philippine courts. The Writ of Kalikasan is a compulsory
writ, and its issuance initiates a legal process that would
circumvent the internationally established rules of
immunity. Should the Court issue the Writ, it could
possibly entail international responsibility for breaching
the jurisdictional immunity of a sovereign state.
I therefore vote to dismiss the Petition.

CONCURRING OPINION

LEONEN, J.:
Prefatory

I agree that the petition should be dismissed primarily
because it is moot and academic.
The parties who brought this petition have no legal
standing. They also invoke the wrong remedy. In my view,
it is time to clearly unpack the rudiments of our
extraordinary procedures in environmental cases in order
to avoid their abuse. Abuse of our procedures contributes to
the debasement of the proper function of the remedies and
invites inordinate interference from this court from what
may be technical and political decisions that must be made
in a different forum. Our sympathy
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for environmental concerns never justifies our conversion

to an environmental super body.
The writ of kalikasan is not an all-embracing legal
remedy to be wielded like a political tool. It is both an
extraordinary and equitable remedy which assists to
prevent environmental catastrophes. It does not replace
other legal remedies similarly motivated by concern for the
environment and the community’s ecological welfare.
Certainly, when the petition itself alleges that remedial
and preventive remedies have occurred, the functions of the
writ cease to exist. In case of disagreement, parties need to
exhaust the political and administrative arena. Only when
a concrete cause of action arises out of facts that can be
proven with substantial evidence may the proper legal
action be entertained.
Citizen’s suits are suits brought by parties suffering
direct and substantial injuries; although in the
environmental field, these injuries may be shared with
others. It is different from class suits brought as
representative suits under Oposa v. Factoran.1 In my view,
there is need to review this doctrine insofar as it allows a
nonrepresentative group to universally represent a whole
population as well as an unborn generation binding them
to causes of actions, arguments, and reliefs which they did
not choose. Generations yet unborn suffer from the legal
inability to assert against false or unwanted
representation.
Citizen’s suits are procedural devices that allow a
genuine cause of action to be judicially considered in spite
of the social costs or negative externalities of such
initiatives. This should be clearly distinguished in our rules
and in jurisprudence from class suits that purport to
represent the whole population and unborn generations.
The former is in keeping with the required constitutional
protection for our people. The latter is dangerous and
should be used only in very extraordi-
_______________
1 G.R. No. 101083, July 30, 1993, 224 SCRA 792 [Per J. Davide, Jr.,
En Banc].
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Arigo vs. Swift
nary or rare situations. It may be jurisprudentially

inappropriate.
In my view, decisions relating to environmental
concerns should be more balanced. It must attend in a
more sober way to the required balance of all interests.
Hence, our rule with respect to standing should require
that parties bringing the suit are sufficiently and
substantially possessed of individual interest and
capability so that they can properly shape the issues
brought before this court. The capability of the parties to
bring suit can readily be seen through the allegations made
in their petition.
Our doctrine regarding sovereign immunity also needs
to be refined in the proper case with respect to its nature,
source, and its limitations.
The doctrine of sovereign immunity evolves out of the
theory and practice of sovereignty and the principle par in
parem non habet jurisdictionem. Its particular contours as
an international norm have evolved far beyond the form it
took when the theory of absolute sovereignty was current.
Contemporarily, it is understood as a basic right extended
to states by other states on the basis of respect for
sovereignty and independence.2 There appears to be a
consensus among states that sovereign immunity as a
concept is legally binding.3 However, there remains to be a
lack of international agreement as to how it is to be
invoked and the extent of immunity in some cases.4
This vagueness arises from the debate on which among
the sources of international law the doctrine of sovereign
immunity draws its binding authority and the content of
the doctrine given its source.
_______________
2 See J. Finke, Sovereign Immunity: Rule, Comity or Something Else?

21(4) Eur J Int. Law 853-881, 854 (2011) <http://ejil.org/pdfs/

21/4/2112.pdf>.
3 Id., at p. 856.
4 Id.
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Arigo vs. Swift
This doctrine of relative jurisdictional immunity

(sovereign immunity) of states and their agents becomes
binding
in our jurisdiction as international law only through
Section 2 of Article II or Section 21 of Article VII of the
Constitution. Article XVII, Section 3 of the Constitution is
a limitation on suits against our state. It is not the textual
anchor for determining the extent of jurisdictional
immunities that should be accorded to other states or their
agents. International law may have evolved further than
the usual distinction between acta jure imperii and acta
jure gestionis. Indications of state practice even of public
respondents show that jurisdictional immunity for foreign
states may not apply to certain violations of jus cogens
rules of international customary law. There can be tort
exemptions provided by statute and, therefore, the state
practice of an agent’s sovereign being sued in our courts.
International law does not also prohibit legislation that
clarifies national policy and, therefore, our own
considerations of state practice in relation to the limits of
jurisdictional immunities for other sovereigns. Neither does
international law prohibit domestic courts from shaping
exceptions to jurisdictional immunity based upon our
reading of the Constitution as well as international and
municipal law.
I am of the view, therefore, that this case be dismissed
principally for its procedural infirmities. We should reserve
doctrinal exposition and declaration of the content of
jurisdictional immunities for other sovereigns and their
agents when the proper cases merit our attention and not
yet unduly limit such jurisprudence in relation to the law
of the sea, municipal torts, and violations of international
customary law of a jus cogens character. The results in this
case would have been different if initiated with the proper
remedy, by the proper parties in the proper court.
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I
Procedural antecedents

This court was asked to issue a writ of kalikasan with
temporary environmental protection order or TEPO
pursuant to Rule 7 of A.M. No. 09-6-8-SC, otherwise known
as the Rules of Procedure for Environmental Cases.

Petitioners seek an immediate order from this court:
1) for respondents to cease and desist all operations over the

Guardian grounding incident;
2) for the demarcation of the metes and bounds of the damaged
area, with an additional buffer zone;
3) for respondents to stop all port calls and war games under
the Balikatan;
4) for respondents to assume responsibility for prior and future
environmental damage in general and under the Visiting Forces
Agreement (VFA);
5) for the temporary definition of allowable activities near or
around the Tubbataha Reefs [Natural] Park, but away from the
damaged site and the additional buffer zone;
6) for respondent Secretary of Foreign Affairs to negotiate with
the United States representatives for an agreement on
environmental guidelines and accountability pursuant to the
VFA;
7) for respondents and appropriate agencies to commence
administrative, civil, and criminal proceedings against erring
officers and individuals;
8) for the declaration of exclusive criminal jurisdiction of
Philippine authorities over erring USS Guardian personnel;
9) for respondents to pay just and reasonable compensation in
the settlement of all meritorious claims for damages caused to the
Tubbataha Reefs;
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Arigo vs. Swift
10) for respondents to cooperate in securing the attendance of

witnesses and the collection and production of evidence, including
objects connected with the offenses related to the grounding of the
Guardian;
11) for respondents US officials and their representatives to
place a deposit to the TRNP Trust Fund, as defined in Section 17
of RA 10067, as a bona fide gesture towards full reparations;
12) for respondents to undertake rehabilitation measures for
areas affected by the grounding of the Guardian;
13) for respondents to publish on a quarterly basis the
environmental damage assessment, valuation, and valuation
methods, in all stages of negotiations to ensure transparency and
accountability;
14) for the convention of a multisectoral technical working
group that will provide scientific and technical support to the
Tubbataha Protected Area Management Board (TPAMB);
15) for respondents Department of Foreign Affairs,

Department of National Defense, and the Department of
Environmental and Natural Resources to review the VFA and the
Mutual Defense Treaty in light of the right to a balanced and
healthful ecology, and any violation related thereto;
16) for the declaration of the grant of immunity under Articles
V and VI of the VFA as being violative of equal protection and/or
the peremptory norm of nondiscrimination;
17) for permission to resort to continuing discovery measures;
and
18) for other just and equitable environmental rehabilitation
measures and reliefs.5
_______________
5 Rollo, pp. 89-92.
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Petitioners include representatives from people’s

organizations, nongovernment organizations, accredited
public interest groups, environmental institutes,
6
government officials, and academicians. Respondents, on
the other hand, are the American commanding officers of
the USS Guardian and the Balikatan 2013 Exercises,
incumbent Philippine government officials, and Philippine
military officers involved, by virtue of their office, in issues
arising out of the grounding of the USS Guardian in
Tubbataha Reefs and its subsequent salvage.7
The USS Guardian is a fifth Avenger Class Mine
Countermeasures, United States Navy ship.8 The three
diplomatic notes issued by the Embassy of the United
States of America in the Philippines dated December 3,
2012,9 December 31, 2012,10 and January 14, 201311 all
sought clearance for the ship to “enter and exit the
territorial waters of the Philippines and to arrive at the
port of Subic Bay for the purpose of routine ship
replenishment, maintenance, and crew liberty.”12
Thus, on January 17, 2013, while en route to Makasaar,
Indonesia, the USS Guardian ran aground in the
Tubbataha Reefs’ south atoll, approximately 80 miles east-
southeast of Palawan.13 In a statement issued on January
25, 2013, US Ambassador to the Philippines Harry K.
Thomas expressed his regret over the incident, recognizing
the legitimate concerns over the damage caused to the
reef.14 On February 5, 2013, a joint statement was issued

by the Philippines and the
_______________
6 Id., at pp. 5-7.

7 Id., at pp. 7-8.
8 Id., at p. 13.
9 Id., at p. 194.
10 Id., at p. 196.
11 Id., at p. 198.
12 All three notes were similarly worded as regards its request for
diplomatic clearance. The amendments only pertained to the arrival and
departure dates of the vessel.
13 Rollo, pp. 333-334.
14 Id., at p. 336.
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United States where the latter undertook to provide

compensation.15 On the same day, a salvage plan was
submitted by a Singaporean company contracted by the US
Navy to conduct the USS Guardian salvage operations.16
The salvage operations were completed on March 30,
2013.17
On April 17, 2013, petitioners filed the present petition
for writ of kalikasan with prayer for temporary
environmental protection order (TEPO).
Acting on petitioners’ petition but without necessarily
giving due course, this court on May 8, 2013 issued a
resolution. The resolution a) required respondents, except
the President of the Republic of the Philippines, to
comment within ten (10) days from notice of the resolution;
and b) held in abeyance the issuance of a TEPO.18
We note that on May 27, 2013, the Office of Legal Affairs
of the Department of Foreign Affairs sent a letter to this
court, requesting that the notice of this court’s resolution
dated May 8, 2013 be returned, as it was not an agent for
the service of processes upon American respondents.19
The pleadings presented the following issues: a) whether
petitioners have legal standing to file a petition for writ of
kalikasan with prayer for temporary environmental
protection order (TEPO), and b) whether the doctrine of
sovereign immunity applies to foreign respondents.
Petitioners argued that they have locus standi.20 Having

categorized the petition as a citizen’s suit, they alleged that
they are representing “others, including minors and
generations yet unborn” in asserting their constitutional
right to a
_______________
15 Id., at p. 161.

16 Id.
17 Id.
18 Id., at p. 145.
19 Id., at p. 255.
20 Id., at p. 31.
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balanced and healthful ecology.21 Petitioners cited this

court’s ruling in Oposa v. Factoran that Article II, Section
16 of the 1987 Constitution was immediately enforceable.
The pronouncement was anchored on the premise that the
right to a balanced and healthful ecology belonged “to a
different category of rights altogether for it concerns
nothing less than self-preservation and self-
22
perpetuation.”
Petitioners also alleged that the American respondents
are not immune from suit.23 Citing Nicolas v. Romulo,24
they argued that Article V of the Visiting Forces
Agreement or VFA, which pertained to “Criminal
Jurisdiction,”25 establishes a
_______________
21 Id., at pp. 5-7.

22 Rollo, p. 32.
23 Id., at pp. 37-38.
24 598 Phil. 262; 578 SCRA 438 (2009) [Per J. Azcuna, En Banc].
25 Sections 1 and 2 of Article V provide:
“1. Subject to the provisions of this article:
(a) Philippine authorities shall have jurisdiction over United States
personnel with respect to offenses committed within the Philippines and
punishable under the law of the Philippines.
(b) United States military authorities shall have the right to exercise
within the Philippines all criminal and disciplinary jurisdiction conferred
on them by the military law of the United States over United States
personnel in the Philippines.
2. (a) Philippine authorities exercise exclusive jurisdiction over
United States personnel with respect to offenses, including offenses
relating to the security of the Philippines, punishable under the laws of
the Philippines, but not under the laws of the United States.
(b) United States authorities exercise exclusive jurisdiction over
United States personnel with respect to offenses, including offenses
relating to the security of the United States, punishable under the laws of
the United States, but not under the laws of the Philippines.
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waiver of the US military officers involved in the

incident’s26 immunity from suit in light of their violation of
Republic Act 10067, or the Tubbataha Reefs Natural Park
(TRNP) Act of 2009,27 including its entry in the area
without proper permit.28 Also citing US cases New York v.
United States Army Corps of Engineers (E.D.N.Y.
September 24, 2012) and Trudeau v. FTC (456 F.3d 178,
D.C. Cir. 2006), petitioners further argued that existing US
federal statutes clearly provide that American government
agencies have statutorily waived their immunity from any
equitable action involving environmental damages.29 They
referred to both Resource Conservation and Recovery Act of
1976 (RCRA) and the Federal Tort Claims Act (FTCA) as
legal bases.30
Petitioners stated that RCRA waives sovereign
immunity in citizen’s suits when a) there is a need to
enforce a permit, standard, or regulation; b) there is a need
to abate an imminent and substantial danger to health or
the environment; or c) the United States Environhmental
Protection Agency is required to perform a
31
nondiscretionary duty.
On the other hand, the FTCA provides that “the U.S.
Government is liable in tort in the same manner and to the
same extent as private individuals under like
circumstances [but only] if the laws of the state in which
the wrongful act occurred provide recovery in similar
situations involving private parties.”32
_______________
(c) For the purposes of this paragraph and paragraph 3 of this Article,
an offense relating to security means: (1) treason, (2) sabotage, espionage
or violation of any law relating to national defense.”

26 Rollo, p. 36.
27 Id., at p. 19.
28 Id., at p. 47, as per Rep. Act No. 10067, Sec. 19.
29 Id., at p. 47.
30 Id., at p. 38.
31 Id.
32 Id., at p. 41.
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Petitioners also argued that the USS Guardian is liable

in rem33 to the Philippines for response costs and damages
resulting from the destruction, loss, and injury caused to
the Tubbataha Reefs.34 Aside from not having had prior
permit to enter the area, petitioners pointed out that the
American respondents had committed gross and
inexcusable negligence when it failed to utilize its technical
expertise and equipment in preventing the incident.35 It is
their position that this necessarily rendered sovereign
immunity inapplicable to American respondents, even if
they were acting within the scope of their authority, office,
or employment.36
II
The parties do not have legal standing

Petitioners brought this case as a citizen’s suit under the
Tubbataha Reefs Natural Park Act of 2009, in conjunction
with the Rules of Procedure for Environmental Cases.37
Section 37 of the Tubbataha Reefs Natural Park Act of
2009 allows any citizen to file a civil, criminal, or
administrative case against:
(a) Any person who violates or fails to comply with the

provisions of this Act its implementing rules and regulations; or
_______________
33 Petitioners cited the United States Code (16 U.S.C.A. § 19jj-1[b]) for the
definition of liability in rem: “Any instrumentality, including but not limited to a
vessel, vehicle, aircraft, or other equipment that destroys, causes the loss of, or
injures any park system resource or any marine or aquatic park resource shall be
liable in rem to the United States for response costs and damages resulting from
such destruction, loss, or injury to the same extent as a person is liable under
subsection (a) of this section.”
34 Rollo, p. 40.

35 Id., at p. 48.
36 Id.
37 Id., at p. 4.
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(b) Those mandated to implement and enforce the provisions of

this Act with respect to orders, rules and regulations issued
inconsistent with this Act; and/or
(c) Any public officer who wilfully or grossly neglects the
performance of an act, specifically enjoined as a duty by this Act
or its implementing rules and regulations; or abuses his authority
in the performance of his duty; or, in any manner improperly
performs his duties under this act or its implementing rules and
regulations: Provided, however, That, no suit can be filed until
after a thirty (30)-day notice has been given to the public officer
and the alleged violator concerned and no appropriate action has
been taken thereon. The court shall exempt such action from the
payment of filing fees, upon prima facie showing of the
nonenforcement or violations complained of and exempt the
plaintiff from the filing of an injunction bond for the issuance of
preliminary injunction. In the event that the citizen should
prevail, the court shall award reasonable attorney’s fees, moral
damages and litigation costs as appropriate.

While the Tubbataha Reefs Natural Park Act
enumerates causes of action available against duty-
bearers, it does not specifically describe the parties who
may file a case.
The “environmental” nature of this petition, based upon
the alleged violation of the Tubbataha Reefs Natural Park
Act, by itself does not and should not automatically render
the Rules of Procedure for Environmental Cases applicable.
At best, it must be reconciled with rules on parties as
contained in the Rules of Court. This is to preclude a
situation where the interpretation of the Rules of
Procedure for Environmental Cases results in a ruling
inconsistent or contrary to established legal concepts. It is
my position that unless the remedy sought will serve the
purpose of preventing an environmental catastrophe, the
traditional procedural route should be taken. This means
that even in environmental cases, Rule 3, Sections 2, 3, or
12 of the 1997 Rules of Civil Procedure should still also
apply.
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Real party-in-interest

Rule 3, Section 2 pertains to real party-in-interest:
SEC. 2. Parties-in-interest.—A real party-in-interest is the

party who stands to be benefited or injured by the judgment in
the suit, or the party entitled to the avails of the suit. Unless
otherwise authorized by law or these Rules, every action must be
prosecuted or defended in the name of the real party in interest.
(2a)38
A real party-in-interest is a litigant whose right or

interest stands to benefit or get injured by the judgment of
the case.39 The interest referred to must be material
interest, founded upon a legal right sought to be enforced.40
They bring a suit because the act or omission of another
has caused them to directly suffer its consequences.41
Simply put, a real party-in-interest has a cause of action
based upon an existing legal right-duty correlative.

Representatives as parties

Section 3 of Rule 3, on the other hand, discusses parties
acting in representation of the real party-in-interest:
SEC. 3. Representatives as parties.—Where the action is

allowed to be prosecuted or defended by a representative or
someone acting in a fiduciary
_______________
38 Rules of Civil Procedure, Rule 3, Sec. 2.

39 See Consumido v. Ros, 555 Phil. 652, 658; 528 SCRA 696, 702 (2007) [Per J.
Tinga, Second Division].
40 Id.
41 Rebollido v. Court of Appeals, 252 Phil. 831, 839; 170 SCRA 800, 806 (1989)
[Per J. Gutierrez, Jr., Third Division], citing Lee, et al. v. Romillo, Jr., 244 Phil.
606, 612; 161 SCRA 589, 595 (1988) [Per J. Gutierrez, Jr., Third Division].
174

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capacity, the beneficiary shall be included in the title of the case

and shall be deemed to be the real party-in-interest. A
representative may be a trustee of an express trust, a guardian,
an executor or administrator, or a party authorized by law or
these Rules. An agent acting in his own name and for the benefit
of an undisclosed principal may sue or be sued without joining the
principal except when the contract involves things belonging to
the principal. (3a)42

A “representative” is not the party who will actually
benefit or suffer from the judgment of the case. The rule
requires that the beneficiary be identified as he or she is
deemed the real party-in-interest.43 This means that acting
in a representative capacity does not turn into a real party-
in-interest someone who is otherwise an outsider to the
cause of action.
This rule enumerates who may act as representatives,
including those acting in a fiduciary capacity. While not an
exhaustive list, it does set a limit by allowing only those
who are “authorized by law or these Rules.”44 In
environmental cases, this section may be used to bring a
suit, provided that two elements concur: a) the suit is
brought on behalf of an identified party whose right has
been violated, resulting in some form of damage, and b) the
representative authorized by law or the Rules of Court to
represent the victim.
The citizen’s suit under the Rules of Procedure for
Environmental Cases is a representative suit. A citizen’s
suit is defined:
SEC. 5. Citizen suit.—Any Filipino citizen in representation

of others, including minors or generations yet un-
_______________
42 Rules of Civil Procedure, Rule 3, Sec. 3.

43 Ang, represented by Aceron v. Spouses Ang, G.R. No. 186993, August 22,
2012, 678 SCRA 699, 709 [Per J. Reyes, Second Division].
44 Rules of Civil Procedure, supra.
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born, may file an action to enforce rights or obligations under

environmental laws. Upon the filing of a citizen suit, the court
shall issue an order which shall contain a brief description of the
cause of action and the reliefs prayed for, requiring all interested
parties to manifest their interest to intervene in the case within
fifteen (15) days from notice thereof. The plaintiff may publish the
order once in a newspaper of a general circulation in the
Philippines or furnish all affected barangays copies of said order.

In my view, this rule needs to be reviewed. A citizen’s
suit that seeks to enforce environmental rights and
obligations may be brought by any Filipino who is acting as
a representative of others, including minors or generations
yet unborn.45 As representatives, it is not necessary for
petitioners to establish that they directly suffered from the
grounding of the USS Guardian and the subsequent
salvage operations. However, it is imperative for them to
indicate with certainty the injured parties on whose behalf
they bring the suit. Furthermore, the interest of those they
represent must be based upon concrete legal rights. It is
not sufficient to draw out a perceived interest from a
general, nebulous idea of a potential “injury.”
This is particularly important when the parties sought
to be represented are “minors and generations yet unborn.”
“Minors and generations yet unborn” is a category of
real party-in-interest that was first established in Oposa v.
Factoran. In Oposa v. Factoran, this court ruled that the
representatives derived their personality to file a suit on
behalf of succeeding generations from “intergenerational
responsibility.”46 The case mirrored through jurisprudence
the general moral duty of the present generation to ensure
the full enjoy-
_______________
45 Revised Procedure on Environmental Cases, Rule II, Sec. 5.

46 Supra note 1 at p. 803.
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ment of a balanced and healthful ecology by the succeeding

generations.47

Since environmental cases necessarily involve the
balancing of different types and degrees of interests,
allowing anyone from the present generation to represent
others who are yet unborn poses three possible dangers.
First, they run the risk of foreclosing arguments of

others who are unable to take part in the suit, putting into
question its representativeness. Second, varying interests
may potentially result in arguments that are bordering on
political issues, the resolutions of which do not fall upon
this court. Third, automatically allowing a class or citizen’s
suit on behalf of “minors and generations yet unborn” may
result in the oversimplification of what may be a complex
issue, especially in light of the impossibility of determining
future generation’s true interests on the matter.
Decisions of this court will bind future generations. The
unbridled and misguided use of this remedy by supposed
representatives may not only weaken the minors’ and
unborn’s ability to decide for themselves but may have
unforeseen and unintended detrimental effects on their
interests.
The last point is especially crucial in light of res
judicata. A long-established doctrine on litigation, res
judicata:
. . . is an old axiom of law, dictated by wisdom and sanctified by

age, and founded on the broad principle that it is to the interest
of the public that there should be an end to litigation by the
same parties over a subject once fully and fairly
adjudicated. It has been appropriately said that the doctrine is a
rule pervading every well-regulated system of jurisprudence, and
is put upon two grounds embodied in various maxims of the
common law: one, public policy and necessity, which makes
it to the interest of the State
_______________
47 Id.
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that there should be an end to litigation — interest

reipublicae ut sit finis litium; the other, the hardship
on the individual that he should be vexed twice for
one and the same cause — nemo debet bis vexari pro
una et eadem causa. A contrary doctrine would subject
the public peace and quiet to the will and neglect of
individuals and prefer the gratification of the litigious
disposition on the part of suitors to the preservation of the

public tranquillity and happiness.48 (Emphasis supplied,
citation omitted)
The elements of res judicata are:
. . . (1) the former judgment must be final; (2) the former

judgment must have been rendered by a court having
jurisdiction of the subject matter and the parties; (3) the former
judgment must be a judgment on the merits; and (4) there
must be between the first and subsequent actions (i) identity
of parties or at least such as representing the same interest in
both actions; (ii) identity of subject matter, or of the rights
asserted and relief prayed for, the relief being founded on the
same facts; and, (iii) identity of causes of action in both actions
such that any judgment that may be rendered in the other action
will, regardless of which party is successful, amount to res
judicata in the action under consideration.49 (Emphasis supplied,
citation omitted)

An absolute identity of the parties is not required for res
judicata to apply, for as long as there exists an identity or
community of interest.50
Res judicata renders conclusive between the parties and
their privies a ruling on their rights, not just for the
present action, but in all subsequent suits. This pertains to
all points
_______________
48 Heirs of Sotto v. Palicte, G.R. No. 159691, June 13, 2013, 698 SCRA
294, 308 [Per J. Bersamin, First Division].
49 Id., at p. 304.
50 Id., at p. 306.
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and matters judicially tried by a competent court. The

doctrine bars parties to litigate an issue more than once,
and this is strictly applied because “the maintenance of
public order, the repose of society . . . require that what has
been definitely determined by competent tribunals shall be
accepted as irrefragable legal truth.”51
Considering the effect of res judicata, the ruling in
Oposa v. Factoran has opened a dangerous practice of
binding parties who are yet incapable of making choices for

themselves, either due to minority or the sheer fact that
they do not yet exist. Once res judicata sets in, the
impleaded minors and generations yet unborn will be
unable to bring a suit to relitigate their interest.
Perhaps it is time to revisit the ruling in Oposa v.
Factoran.
That case was significant in that, at that time, there was
need to call attention to environmental concerns in light of
emerging international legal principles. While
“intergenerational responsibility” is a noble principle, it
should not be used to obtain judgments that would preclude
future generations from making their own assessment based
on their actual concerns. The present generation must
restrain itself from assuming that it can speak best for those
who will exist at a different time, under a different set of
circumstances. In essence, the unbridled resort to
representative suit will inevitably result in preventing
future generations from protecting their own rights and
pursuing their own interests and decisions. It reduces the
autonomy of our children and our children’s children. Even
before they are born, we again restricted their ability to
make their own arguments.
It is my opinion that, at best, the use of the Oposa
doctrine in environmental cases should be allowed only
when a) there is a clear legal basis for the representative
suit; b) there are actual concerns based squarely upon an
existing legal right; c) there is no possibility of any
countervailing interests existing
_______________
51 Id., at p. 308.
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within the population represented or those that are yet to be

born; and d) there is an absolute necessity for such standing
because there is a threat of catastrophe so imminent that an
immediate protective measure is necessary. Better still, in
the light of its costs and risks, we abandon the precedent all
together.

Class suit

The same concern regarding res judicata also applies to

a class suit.
Rule 3, Section 12 of the Rules of Court states:
SEC. 12. Class suit.—When the subject matter of the

controversy is one of common or general interest to many persons
so numerous that it is impracticable to join all as parties, a
number of them which the court finds to be sufficiently numerous
and representative as to fully protect the interests of all
concerned may sue or defend for the benefit of all. Any party-in-
interest shall have the right to intervene to protect his individual
interest. (12a)
In Mathay, et al. v. The Consolidated Bank and Trust

Company,52 this court held that a class suit must
essentially contain the following elements:
The necessary elements for the maintenance of a class

suit are accordingly (1) that the subject matter of the
controversy be one of common or general interest to many
persons, and (2) that such persons be so numerous as to
make it impracticable to bring them all to the court. An
action does not become a class suit merely because it is designated
as such in the pleadings. Whether the suit is or is not a class
suit depends upon the attending facts, and the complaint, or
_______________
52 157 Phil. 551; 58 SCRA 559 (1974) [Per J. Zaldivar, Second Division].
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other pleading initiating the class action should allege the

existence of the necessary facts, to wit, the existence of a
subject matter of common interest, and the existence of a
class and the number of persons in the alleged class, in
order that the court might be enabled to determine whether
the members of the class are so numerous as to make it
impracticable to bring them all before the court, to contrast
the number appearing on the record with the number in the
class and to determine whether claimants on record
adequately represent the class and the subject matter of
general or common interest.
The complaint in the instant case explicitly declared that the
plaintiffs-appellants instituted the “present class suit under
Section 12, Rule 3, of the Rules of Court in behalf of CMI
subscribing stockholders” but did not state the number of said

CMI subscribing stockholders so that the trial court could not
infer, much less make sure as explicitly required by the statutory
provision, that the parties actually before it were sufficiently
numerous and representative in order that all interests
concerned might be fully protected, and that it was
impracticable to bring such a large number of parties before the
court.
The statute also requires, as a prerequisite to a class suit, that
the subject matter of the controversy be of common or general
interest to numerous persons. Although it has been remarked
that the “innocent ‘common or general interest’
requirement is not very helpful in determining whether or
not the suit is proper,” the decided cases in our jurisdiction
have more incisively certified the matter when there is such
common or general interest in the subject matter of the
controversy. By the phrase “subject matter of the action” is
meant “the physical facts, the things real or personal, the
money, lands, chattels, and the like, in relation to which
the suit is
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prosecuted, and not the delict or wrong committed by the

defendant.”53 (Emphasis supplied, citations omitted)
The same case referred to the United States Federal

Rules of Civil Procedure. After having been raised by
Mathay, et al. as legal basis for its class suit, this court
held:
. . . We have no conflict with the authorities cited; those were rulings

under the Federal Rules of Civil Procedure, pursuant to Rule 23 of
which, there were three types of class suits, namely: the true, the
hybrid, and the spurious, and these three had only one feature in
common, that is, in each the persons constituting the class must be
so numerous as to make it impracticable to bring them all before
the court. The authorities cited by plaintiffs-appellants refer to the
spurious class action Rule 23(a)(3) which involves a right sought to be
enforced, which is several, and there is a common question of law or fact
affecting the several rights and a common relief is sought. The spurious
class action is merely a permissive joinder device; between the members of
the class there is no jural relationship, and the right or liability of each is
distinct, the class being formed solely by the presence of a common
question of law or fact. This permissive joinder is provided in Section 6 of
Rule 3, of our Rules of Court. Such joinder is not and cannot be regarded
as a class suit, which this action purported and was intended to be as per
averment of the complaint.
It may be granted that the claims of all the appellants involved
the same question of law. But this alone, as said above, did not
constitute the common interest over the subject matter
54
indispensable in a class suit. . . . (Emphasis supplied, citations
omitted)
_______________
53 Id., at pp. 563-565; pp. 570-571.

54 Id., at pp. 567-568; p. 574.
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In a class suit, petitioners necessarily bring the suit in

two capacities: first, as persons directly injured by the act
or omission complained of; and second, as representatives
of an entire class who have suffered the same injury. In
order to fully protect all those concerned, petitioners must
show that they belong in the same universe as those they
seek to represent. More importantly, they must establish
that, in that universe, they can intervene on behalf of the
rest.
These requirements equally apply in environmental
cases.
Petitioners who bring the suit both for themselves and
those they seek to represent must share a common legal
interest — that is, the subject of the suit over which there
exists a cause of action is common to all persons who
belong to the group.55 As a result, the right sought to be
enforced is enjoyed collectively, and not separately or
individually.56 The substantial injury must have been
suffered by both the parties bringing the suit and the
represented class.
However, it is recognized that any damage to the
environment affects people differently, rendering it
impossible for the injury suffered to be of the same nature
and degree for each and every person. For instance,
secondhand smoke from one who lights up a cigarette may
cause lung and other health complications of a much graver
degree to exposed commuters, compared to those who are
kept insulated by well-maintained and well-ventilated
buildings. The same may be said for dumpsites along the
shores of a bay. The gravity of injury they cause to those

whose source of livelihood is purely fishing in the affected
area would be entirely different from that suffered by an
office worker.
_______________
55 See Re: Request of the Plaintiffs, Heirs of the Passengers of the Doña
Paz to Set Aside the Order dated January 4, 1988 of Judge B.D.
Chingcuangco, A.M. No. 88-1-646-0, March 3, 1988, 159 SCRA 623, 627
[En Banc].
56 Id.
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The differences in effects, ranging from miniscule to

grave, increase the possibility of “free-riders” in a case.
This results in a negative externality: an environmental
management concept that delves into the effect of an
individual’s or firm’s action on others.57 In this case, the
effect on others is a disadvantage or an injury.
In most instances where this free-rider or negative
externality exists, a suit is not filed because the cost of
maintaining and litigating outweighs the actual damage
suffered due to the act or omission of another. The theory is
that bringing a class suit allows those who are not as
affected as petitioners, though they may share the same
interest, to latch their claim on someone else without any
personal expense. There must be some assurances,
however, that the interests are the same and the
arguments that should have been brought by others who do
not have the resources to bring the suit are properly
represented. This is why the rules allow courts to be liberal
in assessing “common interest.”
Another essential element of a class suit is that
petitioners must be sufficiently numerous and
representative so as to fully protect the interest of all
concerned. One of the dangers of bringing a class suit is
that while the parties’ environmental interest shares a
common legal basis, the extent and nature of that interest
differ depending on circumstances.
In the case of Re: Request of the Plaintiffs, Heirs of the
Passengers of the Doña Paz,58 which quoted Moore’s
Federal Practice we noted:
A “true class action” — distinguished from the so-called

hybrid and the spurious class action in U.S. Federal Practice
— “involves principles of compulsory joinder, since . . . (were it
not) for the numerosity of
_______________
57 J.E. Stiglitz, Economics of the Public Sector, p. 215 (3rd ed., 2000).
58 Supra note 55.
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the class members all should . . . (be) before the court. Included
within the true class suit . . . (are) the shareholders’ derivative
suit and a class action by or against an unincorporated
association. . . . A judgment in a class suit, whether favorable
or unfavorable to the class, is binding under res judicata
principles upon all the members of the class, whether or not
they were before the court. It is the non-divisible nature of
the right sued on which determines both the membership of
the class and the res judicata effect of the final
determination of the right.”59 (Emphasis supplied)
Those who bring class suits do so, carrying a heavy

burden of representation. All the parties represented may
not have consented to the agency imposed on them.
Courts, therefore, must ensure that the parties that
bring the suit are sufficiently numerous to ensure that all
possible interests and arguments have been considered.
The community, class, group, or identity that is
represented must be sufficiently defined so that the court
will be able to properly assess that the parties bringing the
suit are properly representative.
In view of the technical nature of some environmental
cases, not only should the parties be representative in
terms of the interests and arguments that they bring, they
must likewise show that they have the capability to bring
reasonably cogent, rational, scientific, well-founded
arguments. This is so because if they purportedly represent
a community, class, group, or identity, we should assume
that all those represented would have wanted to argue in
the best possible manner.
The cogency and representativeness of the arguments
can readily be seen in the initiatory pleading. In the special
civil
_______________
59 Id., at p. 627.
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actions invoked in this case, this court has the discretion to

scrutinize the initiatory pleading to determine whether it
should grant due course prior or after the filing of a
comment. In my view, this pleading falls short of the
requirement of representativeness.
For instance, it is clear in some of the reliefs that were
requested that the arguments may not be what all those
they purport to represent really want. As an illustration,
the petition requests:
3) for respondents to stop all port calls and war games under
the Balikatan;
The facts in this case and the writ of kalikasan certainly

have no bearing on why this court should issue an
injunction against all port calls in any part of the country
made by all kinds of ships even if this is related to the
Balikatan exercises. “War games” even undertaken solely
on land has no bearing on the subject matter of this case.
Also, in the facts as alleged in the pleading, it is not clear
how all those affected by the ecological mishap that may
have occurred in the Tubbataha Reefs would also be
interested in stopping “war games under the Balikatan.”
The pleading asserts that it represents all generations yet
unborn. Thus, it includes the sons and daughters of all
government officials who are now involved in the Balikatan
exercises. It also includes the military commanders who
are now administering such exercise. The broad relief
requested belies the representativeness of the suit.
Of similar nature are the following prayers for relief in

the petition:
4) for respondents to assume responsibility for prior
and future environmental damage in general and under the
Visiting Forces Agreement (VFA);
5) for the temporary definition of allowable activities
near or around the Tubbataha Reefs [Natural] Park, but
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Arigo vs. Swift
away from the damaged site and the additional buffer zone;
6) for respondent Secretary of Foreign Affairs to
negotiate with the United States representatives for an
agreement on environmental guidelines and accountability
pursuant to the VFA;
....
8) for the declaration of exclusive criminal jurisdiction
of Philippine authorities over erring USS Guardian
personnel;
....
14) for the convention of a multisectoral technical
working group that will provide scientific and technical
support to the Tubbataha Protected Area Management
Board (TPAMBl);
15) for respondents Department of Foreign Affairs,
Department of National Defense, and the Department of
Environmental and Natural Resources to review the VFA
and the Mutual Defense Treaty in light of the right to a
balanced and healthful ecology, and any violation related
thereto;
16) for the declaration of the grant of immunity under
Articles V and VI of the VFA as being violative of equal
protection and/or the peremptory norm of
nondiscrimination;
17) for permission to resort to continuing discovery
measures.
Not all environmental cases need to be brought as class

suits. There is no procedural requirement that majority of
those affected must file a suit in order that an injunctive
writ or a writ of kalikasan can be issued. It is sufficient
that the party has suffered its own direct and substantial
interest, its legal basis is cogent, and it has the capability
to move forward to present the facts and, if necessary, the
scientific basis for its analysis for some of these cases to be
given due course.
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Parenthetically, the humility of bringing suits only in

the name of petitioners will protect them from the charge
that more than the legal arguments they want to bring,

they also want to impose their own political views as views
which are universally accepted.
In all environmental cases, it is also not necessary that
generations yet unborn be represented. It is not also
necessary that minors bring the suit. In my view, pleading
their interests have no value added to the case except for
its emotive effect at the risk of encouraging a paternal
attitude toward our children and for those belonging to
generations yet unborn. Certainly, it was not necessary
with respect to the putative cause of action relating to the
grounding of the USS Guardian.
With the class suit improperly brought, the parties who
filed this petition have no legal standing. To protect the
individuals, families, and communities who are improperly
represented, this case should be dismissed.
III
A petition for a writ of kalikasan is
a wrong remedy
Rule 7, Part III of the Rules of Procedure for
Environmental Cases pertaines to the writ of kalikasan. It
describes the nature of the writ:
Section 1. Nature of the writ.—The writ is a remedy

available to a natural or juridical person, entity authorized by
law, people’s organization, nongovernmental organization, or any
public interest group accredited by or registered with any
government agency, on behalf of persons whose
constitutional right to a balanced and healthful ecology is
violated, or threatened with violation by an unlawful act or
omission of a public official or employee, or private individual or
entity, involving environmental damage of such magnitude
as to prejudice the life, health or prop-
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Arigo vs. Swift
erty of inhabitants in two or more cities or provinces.

(Emphasis supplied)
The writ of kalikasan is a remedy that covers

environmental damages the magnitude of which
transcends both political and territorial boundaries.60 It
specifically provides that the prejudice to life, health, or
property caused by an unlawful act or omission of a public
official, public employee, or a private individual or entity
must be felt in at least two cities or provinces.61 The
petition for its issuance may be filed on behalf of those

whose right to a balanced and healthful ecology is violated,
provided that the group or organization which seeks to
represent is duly accredited.62

Two things must be examined: first, whether petitioners
are qualified to bring this suit under the requirements of
the provisions; and second, whether there are actual
injured parties being represented. On the first issue, the
following petitioners bring this case as individuals:
Rev. Pedro Agiro, Vicar Apostolic of Puerto Princesa63

Rev. Deogracias Iniguez, Jr., Bishop-Emeritus of Caloocan64
Frances Quimpo65
Teresita R. Perez, Ph.D.66
Giovanni Tapang, Ph.D.67
Jose Enrique Africa68
_______________
60 Annotation to the Rules of Procedure for Environmental Cases, p. 133.

61 Id.
62 Id.
63 Rollo, p. 5.
64 Id.
65 Id.
66 Id., at p. 6.
67 Id.
68 Id.
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Nestor Baguinon69
Edsel Tupa70
The following petitioners represent organizations:
Clemente Bautista Jr., Coordinator of Kalikasan People’s

Network for the Environment71
Maria Carolina Araullo, Chairperson of Bagong Alyansang
Makabayan (Bayan)72
Renato Reyes Jr., Secretary-General of Bagong Alyansang
Makabayan (Bayan)73
Hon. Neri Javier Colmenares, Representative of Bayan Muna
Party-list74
Roland Simbulan, Ph.D., Junk VFA Movement75
Hon. Raymond Palatino, Representative of Kabataan Party-

list76
Peter Gonzales, Vice Chairperson of Pambansang Lakas ng
Kilusang Mamamalakaya ng Pilipinas (Pamalakaya)77
Elmer Labog, Chairperson of Kilusang Mayo Uno78
Joan May Salvador, Secretary-General of Gabriela79
Theresa Concepcion, Earth Island Institute80
_______________
69 Id., at p. 7.
70 Id.
71 Id., at p. 5.
72 Id.
73 Id.
74 Id.
75 Id., at p. 6.
76 Id.
77 Id.
78 Id.
79 Id.
80 Id.
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Arigo vs. Swift
Mary Joan Guan, Executive Director for Center for Women’s

Resource81
Petitioners satisfy the first requirement as they

comprise both natural persons and groups duly recognized
by the government. It is doubtful, however, whether there
are actual injured parties being represented. As discussed
previously, a citizen’s suit on an environmental issue must
be resorted to responsibly.
Petitioners in this case also seek the issuance of a
temporary environmental protection order or TEPO. Rule
7, Part III of the Rules of Procedure for Environmental
Cases provides:
SEC. 8. Issuance of Temporary Environmental Protection

Order (TEPO).—If it appears from the verified complaint with a
prayer for the issuance of an Environmental Protection Order
(EPO) that the matter is of extreme urgency and the
applicant will suffer grave injustice and irreparable
injury, the executive judge of the multiple-sala court before raffle
or the presiding judge of a single-sala court as the case may be,
may issue ex parte a TEPO effective for only seventy-two (72)

hours from date of the receipt of the TEPO by the party or person
enjoined. Within said period, the court where the case is assigned,
shall conduct a summary hearing to determine whether the TEPO
may be extended until the termination of the case.
The court where the case is assigned, shall periodically monitor
the existence of acts that are the subject matter of the TEPO even
if issued by the executive judge, and may lift the same at any time
as circumstances may warrant.
The applicant shall be exempted from the posting of a bond for
the issuance of a TEPO. (Emphasis supplied)
_______________
81 Id.
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A TEPO is an order which either directs or enjoins a

person or government agency to perform or refrain from a
certain act, for the purpose of protecting, preserving, and/or
rehabilitating the environment.82 The crucial elements in
its issuance are the presence of “extreme urgency” and
“grave injustice and irreparable injury” to the applicant.83
Petitioners hinge the basis for this prayer on the salvage
operations conducted immediately after the incident. The
remedy is no longer available considering that all activities
to remove the grounded USS Guardian have been
concluded.84 Furthermore, the Notice to Mariners No. 011-
2013 issued by the Philippine Coast Guard on January 29,
2013 effectively set the metes and bounds of the damaged
area.85 This notice also prohibited “leisure trips to
Tubbataha” and advised “all watercrafts transitting the
vicinity to take precautionary measures.”86
In light of the facts of this case, I vote that the petition
be also dismissed for being moot and being brought
through the wrong remedy.
IV
Doctrine of relative jurisdictional immunity
(sovereign immunity)

It is my position that doctrine on relative jurisdictional
immunity of foreign states or otherwise referred to as
sovereign immunity should be further refined. I am of the
view that immunity does not necessarily apply to all
the foreign respondents should the case have been

brought in a timely manner, with the proper remedy,
and in the
_______________

83 Id., at p. 114.
84 Rollo, p. 164.
85 Id.
86 Id., at p. 161.
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Arigo vs. Swift
proper court. Those who have directly and actually

committed culpable acts or acts resulting from gross
negligence resulting in the grounding of a foreign
warship in violation of our laws defining a tortious
act or one that protects the environment which
implement binding international obligations cannot
claim sovereign immunity.
Some clarification may be necessary to map the contours
of relative jurisdictional immunity of foreign states
otherwise known as the doctrine of sovereign immunity.
The doctrine of sovereign immunity can be understood
either as a domestic or an international concept.87
As a domestic concept, sovereign immunity is
understood as the non-suability of the state. In the case of
the Republic of the Philippines as a State, this is contained
in Article XVI, Section 3 of the 1987 Philippine
Constitution, which provides that “[the] State may not be
sued without its consent.”
In Air Transportation Office v. Spouses Ramos,88 this
court underscored the practical considerations underlying
the doctrine:
Practical considerations dictate the establishment of an

immunity from suit in favor of the State. Otherwise, and the
State is suable at the instance of every other individual,
government service may be severely obstructed and public
safety endangered because of the number of suits that the
State has to defend against . . . .89 (Emphasis supplied, citation
omitted)
_______________
87 Supra note 2.

88 G.R. No. 159402, February 23, 2011, 644 SCRA 36 [Per J.
Bersamin, Third Division].
89 Id., at p. 42.
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The textual reference to “[the] State” in Article XVI,

Section 3 of the Constitution does not refer to foreign
governments. Rather, as a doctrine in international law,
the concept of sovereign immunity is incorporated into our
jurisdiction as international custom or general principle of
international law through Article II, Section 2, which
provides:
Section 2. The Philippine renounces war as an instrument of

national policy, adopts the generally accepted principles of
international law as part of the law of the land and adheres to the
policy of peace, equality, justice, freedom, cooperation, and amity
with all nations.90
Alternatively, should there be an international

agreement or a treaty91 that articulates the scope of
jurisdictional immunity for other sovereigns, then it can be
incorporated through Article VII, Section 21, which
provides:
No treaty or international agreement shall be valid and

effective unless concurred in by at least two-thirds of all the
Members of the Senate.
In Republic of Indonesia v. Vinzon,92 this court ruled

that “[the] rule that a State may not be sued without its
consent is a necessary consequence of the principles of
independence and equality of States.”93 However, it did not
make any reference to Article XVI, Section 3 of the
Constitution. Instead, it used Article II, Section 294 as basis
for its discussion:
_______________
90 Const. (1987), Art. II, Sec. 2.

91 Unless the relevant treaty provision simply articulates an existing
international customary norm in which case it will be arguably
incorporated through Article II, Section 2 of the Constitution also.
92 452 Phil. 1100; 405 SCRA 126 (2003) [Per J. Azcuna, En Banc].
93 Id., at p. 1107; p. 131.

94 Const. (1987), Art. II, Sec. 2 states, “The Philippines renounces war
as an instrument of national policy, adopts the gener-
194

Arigo vs. Swift
International law is founded largely upon the principles

of reciprocity, comity, independence, and equality of States
which were adopted as part of the law of our land under
Article II, Section 2 of the 1987 Constitution. The rule that a
State may not be sued without its consent is a necessary
consequence of the principles of independence and equality
of States. As enunciated in Sanders v. Veridiano II, the practical
justification for the doctrine of sovereign immunity is that there
can be no legal right against the authority that makes the law on
which the right depends. In the case of foreign States, the rule
is derived from the principle of the sovereign equality of
States, as expressed in the maxim par in parem non habet
imperium. All states are sovereign equals and cannot assert
jurisdiction over one another. A contrary attitude would “unduly
vex the peace of nations.”95 (Emphasis supplied, citations omitted)
V
Sovereign immunity under international law
Under international law, sovereign immunity remains to
be an abstract concept. On a basic level, it is understood as
a basic right extended to states by other states on the basis
of respect for sovereignty and independence.96 There
appears to be a consensus among states that sovereign
immunity as a concept is legally binding.97 Nevertheless,
legal scholars observe that there remains to be a lack of
agreement as to how it is to be invoked or exercised in
actual cases.98 Finke presents:
______________
ally accepted principles of international law as part of the law

of the land and adheres to the policy of peace, equality, justice,
freedom, cooperation, and amity with all nations.”
95 Supra note 92 at p. 1107; pp. 130-131.
96 Supra note 2.
97 Id., at p. 856.
98 Id.
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States accept sovereign immunity as a legally binding concept,

but only on a very abstract level. They agree on the general
idea of immunity, but disagree on the extent to which they
actually must grant immunity in a specific case.99
(Emphasis supplied, citations omitted)
This vagueness arises from the debate about the sources

of international law for the doctrine of sovereign immunity.
Article 38(1) of the Statute of the International Court of
Justice (ICJ Statute)100 enumerates the classic sources of
international law:101
The Court, whose function is to decide in accordance with

international law such disputes as are submitted to it, shall
apply:
a. international conventions, whether general or particular,
establishing rules expressly recognized by the contesting states;
b. international custom, as evidence of a general practice
accepted as law;
c. the general principles of law recognized by civilized
nations;
d. subject to the provisions of Article 59, judicial decisions and
the teachings of the most highly qualified publicists of the various
nations, as subsidiary means for the determination of rules of law.
International conventions, or treaties, are “international

agreement[s] concluded between States in written form and
governed by international law, whether embodied in a
single instrument, or in two or more related instruments
and what-
_______________
99 Id., at pp. 856-857.

100 Available at <http://legal.un.org/avl/pdf/ha/sicj/icj_statue_e.pdf>.
101 See D. Kennedy, The Sources of International Law, 2(1) American
University Int. Law Review, 1-96 (1987).
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Arigo vs. Swift
ever its particular designation.”102 International custom, or

customary international law, pertains to principles, not
necessarily expressed in treaties, resulting from practices

consistently followed by states due to a sense of legal
obligation.103 General principles of law recognized by
civilized nations are “(those) principles of law, private and
public, which contemplation of the legal experience of
civilized nations leads one to regard as obvious maxims of
jurisprudence of a general and fundamental character.”104

Sovereign immunity under treaty law

Attempts have been made to establish sovereign
immunity under treaty law.105 On a multilateral level, two
treaties on this issue have been codified: a) the European
Convention on State Immunity (ECSI), and b) the UN
Convention on Jurisdictional Immunities of States
(UNCJIS).
_______________
102 Vienna Convention on the Law of Treaties (1961), Art. 2(1)(a)

<https://treaties.un.org/doc/Publication/UNTS/Volume%201155/volume-
1155-1-18232-English.pdf>.
103 E. Posner and Jack L. Goldsmith, A Theory of Customary
International Law (John M. Olin Program in Law and Economics Working
Paper No. 63, 1998). See also M. Panezi, Sources of Law in Transition: Re-
visiting general principles of International Law, Ancilla Juris, and
<http://www.anci.ch/_media/beitrag/ancilla2007_66_panezi_sources.pdf>.
See also Restatement (Third) of Foreign Relations Law (1987), Sec. 102(2).
104 E. Posner and Jack L. Goldsmith, A Theory of Customary
International Law 70 (John M. Olin Program in Law and Economics
Working Paper No. 63, 1998). See also E. Lauterpacht, International Law
Being the Collected Papers of Hersch Lauterpacht, Vol. I, The General
Works.

197
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The European Convention on State Immunity is a treaty

established through the Council of Europe on May 16,
1972.106 In the Council of Europe’s explanatory report,
sovereign immunity is defined as “a concept of
international law, which has developed out of the principle
par in parem non habet imperium, by virtue of which one
State is not subject to the jurisdiction of another State.”107

The treaty arose out of the need to address cases where
states become involved in areas of private law:
For many years State immunity has occupied the attention of

eminent jurists. It is also the object of abundant case law. The
development of international relations and the increasing
intervention of States in spheres belonging to private law
have posed the problem still more acutely by increasing the
number of disputes opposing individuals and foreign
States.
There are, at present, two theories, that of absolute State
immunity which is the logical consequence of the principle stated
above and that of relative State immunity which is tending
to predominate on account of the requirement of modern
conditions. According to this latter theory, the State enjoys
immunity for acts jure imperii but not for acts jure
gestionis, that is to say when it acts in the same way as a
private person in relations governed by private law. This
divergence of opinion causes difficulties in international relations.
States whose courts and administrative authorities apply the
theory of absolute State immunity are led to call for the same
treatment abroad. (Emphasis supplied)
_______________
106 Council of Europe – Explanatory Report on the European

Convention on State Immunity (ETS No. 074),
<http://conventions.coe.int/Treaty/EN/Reports/Html/074.htm>.
107 Id.
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Arigo vs. Swift
However, the European Convention on Sovereign

Immunity’s application is limited to the signatories of the
treaty:
The Convention requires each Contracting State to give effect

to judgments rendered against it by the courts of another
Contracting State. It is in particular for this reason that it
operates only between the Contracting States on the basis of
the special confidence subsisting among the Members of the
Council of Europe. The Convention confers no rights on
nonContracting States; in particular, it leaves open all
questions as to the exercise of jurisdiction against non-
Contracting States in Contracting States, and vice versa.
On the other hand, the UN Convention on Jurisdictional

Immunities of States108 is a treaty adopted by the UN
General Assembly in December 2004. It was opened for
signature on January 27, 2005, but is yet to be in force109
for lacking the requisite number of member-state
signatories.110 At present, it only has 28 signatories, 16 of
which have either ratified, accepted, approved, or acceded
to the treaty.111
UNCJIS refers to jurisdictional immunities of states as
a principle of customary international law.112 Scholars,
however, point out that this posture is not accurate.
According to Nagan and Root:113
_______________
108 December 2, 2004.

109 The Philippines is not a signatory to the Convention.
110 See Art. 30 of Convention.
111 Status according to the UN Treaty Collection as of 07-17-2014,
<https://treaties.un.org/Pages/ViewDetails.aspx?mtdsg_no=III-
13&chapter=3&lang=en>.
112 UN Convention on Jurisdictional Immunities of States and their
Properties, preamble.
113 W. Nagan and J. L. Root, The Emerging Restrictions on Sovereign
Immunity: Peremptory Norms of International Law, the UN Charter, and
the Application of Modern Communications Theory, 38 N.C. J. Int’l L. &
Comm. Reg. 375 (2013)
<http://www.law.unc.edu/journals/ncilj/issues/volume38/issue-2-winter-
2013/the-emerging-

199
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It may be true that all states recognize jurisdictional

immunity, but as we have already alluded to, that is so only at
an abstract level; there is “substantial disagreement on
detail and substance.”114 (Emphasis supplied, citations
omitted)
Wiesinger adds:
The UN Convention is not a codification of customary

international law concerning enforcement measures either,
since it introduces new categories of State property, which

are immune from execution. Moreover, it contains a connection
requirement of property serving commercial purposes with the
entity against which the claim was directed, which is a novelty in
international law.115 (Emphasis supplied)
The Philippines has neither signed nor ratified the

UNCJIS. Article VII, Section 21 of the Constitution clearly
provides the legal requisites to a valid and enforceable
international treaty: “No treaty or international agreement
shall be valid and effective unless concurred in by at least
two-thirds of all the Members of the Senate.”
Senior Associate Justice Antonio T. Carpio ably points to
the UN Convention on the Law of the Sea (UNCLOS) as
basis for the waiver of sovereign immunity in this case, on
account of a warship entering a restricted area and causing
damage to the TRNP reef system. This is based on a
reading of Articles 31 and 32 of the UNCLOS, thus:
_______________
restrictions-on-sovereign-immunity-peremptory-norms-of-international-
law-the-un-charter-and-the-application-of-modern-communication-theo/>.
114 Id., at pp. 60-61.
115 M.E. Wiesinger, State Immunity from Enforcement Measures
(2006) <http://intlaw.univie.ac.at/fileadmin/user_upload/int_beziehungen/

Internetpubl/wiesinger.pdf>.
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Arigo vs. Swift
Article 31
Responsibility of the flag State for damage caused
by a warship or other government ship operated
The flag State shall bear international responsibility for any

loss or damage to the coastal State resulting from the
noncompliance by a warship or other government ship operated
for noncommercial purposes with the laws and regulations of the
coastal State concerning passage through the territorial sea or
with the provisions of this Convention or other rules of
international law.
This is, however, subject to Article 32 of the same treaty

which provides:
Article 32
Immunities of warships and other government ships operated

With such exceptions as are contained in subsection A and in
Articles 30 and 31, nothing in this Convention affects the
immunities of warships and other government ships operated for
noncommercial purposes.
I agree that the UNCLOS does provide an opening

clarifying the “international responsibility” of the flag ship
for noncompliance by a warship with the laws of a coastal
State. However, because of Article 32 of the same treaty, it
would seem that it should not be the only basis for this
court to infer either a waiver by the United States or
authority under international law for domestic courts to
shape their own doctrines of sovereign jurisdictional
immunity.
Other international agreements
The text of Article VII, Section 21 would seem to require
Senate concurrence for treaties and “international
agreements.” The term “international agreements,”
however, for
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Arigo vs. Swift
purposes of granting sovereign immunity, should not cover

mere executive agreements.
We are aware of Bayan Muna v. Romulo116 where the
ponente for this court held:
. . . International agreements may be in the form of (1)

treaties that require legislative concurrence after executive
ratification; or (2) executive agreements that are similar to
treaties, except that they do not require legislative
concurrence and are usually less formal and deal with a
narrower range of subject matters than treaties.
Under international law, there is no difference between
treaties and executive agreements in terms of their binding
effects on the contracting states concerned, as long as the
negotiating functionaries have remained within their
powers. Neither, on the domestic sphere, can one be held valid if
it violates the Constitution. Authorities are, however, agreed that
one is distinct from another for accepted reasons apart from the
concurrence-requirement aspect. As has been observed by US
constitutional scholars, a treaty has greater “dignity” than an
executive agreement, because its constitutional efficacy is beyond
doubt, a treaty having behind it the authority of the President,

the Senate, and the people; a ratified treaty, unlike an executive
agreement, takes precedence over any prior statutory
enactment.117 (Emphasis supplied, citations omitted)
This statement, however, should be confined only to the

facts of that case. Executive agreements are not the same
as treaties as a source of international law. It certainly
may have a different effect in relation to our present
statutes unlike a treaty that is properly ratified.
_______________
116 Bayan Muna v. Romulo, G.R. No. 159618, February 1, 2011, 641
SCRA 244 [Per J. Velasco, Jr., En Banc].
117 Id., at pp. 258-260.
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Due to the nature of respondents’ position in the United

States Armed Forces, the Visiting Forces Agreement of
1998 (VFA) is relevant in this case. In particular, the
question of whether the VFA, executed between the
Republic of the Philippines and the United States
government, may be treated as a “treaty” upon which the
doctrine of foreign sovereign immunity is founded must be
addressed.
In BAYAN v. Zamora,118 this court tackled the issues
pertaining to the constitutionality of the VFA. It was
described as “consist[ing] of a Preamble and nine (9)
Articles, [and it] provides for the mechanism for regulating
the circumstances and conditions under which [the] US
Armed Forces and defense personnel maybe present in the
Philippines. . . . ”119
As a preliminary issue, this court ruled that the Senate
concurrence as required by the Constitution was achieved,
thereby giving VFA a legally binding effect upon the
government.120 However, the agreement’s characterization
as a “treaty” was put in question. This court held that
despite the nonconcurrence of the United States Senate,
the VFA is validly categorized as a treaty:
This Court is of the firm view that the phrase “recognized as

a treaty” means that the other contracting party accepts or
acknowledges the agreement as a treaty. To require the other
contracting state, the United States of America in this case, to

submit the VFA to the United States Senate for concurrence
pursuant to its Constitution, is to accord strict meaning to the
phrase.
Well-entrenched is the principle that the words used in the
Constitution are to be given their ordinary meaning except where
technical terms are employed, in which case the significance thus
attached to them pre-
_______________
118 396 Phil. 623; 342 SCRA 449 (2000) [Per J. Buena, En Banc].
119 Id., at p. 637; p. 469.
120 Id., at p. 656; p. 487.
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vails. Its language should be understood in the sense they have in

common use.
Moreover, it is inconsequential whether the United States
treats the VFA only as an executive agreement because,
under international law, an executive agreement is as
binding as a treaty. To be sure, as long as the VFA possesses
the elements of an agreement under international law, the
said agreement is to be taken equally as a treaty.
A treaty, as defined by the Vienna Convention on the Law of
Treaties, is “an international instrument concluded between
States in written form and governed by international law,
whether embodied in a single instrument or in two or more
related instruments, and whatever its particular designation.”
There are many other terms used for a treaty or international
agreement, some of which are: act, protocol, agreement,
compromis d’ arbitrage, concordat, convention, declaration,
exchange of notes, pact, statute, charter and modus vivendi. All
writers, from Hugo Grotius onward, have pointed out that the
names or titles of international agreements included under the
general term treaty have little or no legal significance. Certain
terms are useful, but they furnish little more than mere
description.
Article 2(2) of the Vienna Convention provides that the
provisions of paragraph 1 regarding the use of terms in the
present Convention are without prejudice to the use of those
terms, or to the meanings which may be given to them in the
internal law of the State.
Thus, in international law, there is no difference between
treaties and executive agreements in their binding effect
upon states concerned, as long as the negotiating

functionaries have remained within their powers.
International law continues to make no distinction between
treaties and executive agreements: they are equally binding
obligations upon nations.
204

Arigo vs. Swift
In our jurisdiction, we have recognized the binding effect

of executive agreements even without the concurrence of the
Senate or Congress. . . .
....
The records reveal that the United States Government,
through Ambassador Thomas C. Hubbard, has stated that the
United States government has fully committed to living up to the
terms of the VFA. For as long as the United States of America
accepts or acknowledges the VFA as a treaty, and binds itself
further to comply with its obligations under the treaty, there is
indeed marked compliance with the mandate of the
Constitution.121 (Emphasis supplied, citations omitted)
Under the US legal system, however, an executive

agreement, while legally binding, may not have the same
effect as a treaty. It may, under certain circumstances, be
considered as inferior to US law and/or Constitution.
According to Garcia:122
Under the U.S. legal system, international agreements can be

entered into by means of a treaty or an executive agreement. The
Constitution allocates primary responsibility for entering into
such agreements to the executive branch, but Congress also plays
an essential role. First, in order for a treaty (but not an executive
agreement) to become binding upon the United States, the Senate
must provide its advice and consent to treaty ratification by a
two-thirds majority. Secondly, Congress may authorize
congressional-executive agreements. Thirdly, many treaties and
executive agreements are not self-executing, meaning that
implementing legislation is required to provide U.S. bodies with
the domestic legal
_______________
121 Id., at pp. 657-660; pp. 488-491.

122 M. J. Garcia (Legislative Attorney), International Law and Agreements:
their effect upon US law, Congressional Research Service 7-5700 RL32528 (2014),
<http://fas.org/sgp/crs/misc/RL32528.
pdf>.
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authority necessary to enforce and comply with an international

agreement’s provisions.
The status of an international agreement within the
United States depends on a variety of factors. Self-executing
treaties have a status equal to federal statute, superior to U.S.
state law, and inferior to the Constitution. Depending upon the
nature of executive agreements, they may or may not have a
status equal to federal statute. In any case, self-executing
executive agreements have a status that is superior to U.S.
state law and inferior to the Constitution. Treaties or
executive agreements that are not self-executing have been
understood by the courts to have limited status
domestically; rather, the legislation or regulations
implementing these agreements are controlling.123
(Emphasis supplied, citation omitted)
Domestic politics and constitutional guidelines also

figure into the effect of an executive agreement in the
United States. Garcia adds:
The great majority of international agreements that the

United States enters into are not treaties but executive
agreements — agreements entered into by the executive
branch that are not submitted to the Senate for its advice
and consent. Congress generally requires notification upon the
entry of such an agreement. Although executive agreements are
not specifically discussed in the Constitution, they nonetheless
have been considered valid international compacts under
Supreme Court jurisprudence and as a matter of historical
practice.
....
Sole executive agreements rely on neither treaty nor
congressional authority to provide for their legal ba-
_______________
123 Id.
206
Arigo vs. Swift
sis. The Constitution may confer limited authority upon the

President to promulgate such agreements on the basis of his
foreign affairs power. If the President enters into an executive
agreement pursuant to and dealing with an area where he has
clear, exclusive constitutional authority — such as an agreement
to recognize a particular foreign government for diplomatic
purposes — the agreement is legally permissible regardless of
Congress’s opinion on the matter. If, however, the President
enters into an agreement and his constitutional authority over the
agreement’s subject matter is unclear, a reviewing court may
consider Congress’s position in determining whether the
agreement is legitimate. If Congress has given its implicit
approval to the President entering the agreement, or is silent on
the matter, it is more likely that the agreement will be deemed
valid. When Congress opposes the agreement and the President’s
constitutional authority to enter the agreement is ambiguous, it is
unclear if or when such an agreement would be given effect.124
The recognition of the complex nature and legal

consequences of an executive agreement entered into by the
United States with another State must not be taken
lightly. This is especially in light of the invocation of
“international comity,” which loosely refers to “applying
foreign law or limiting domestic jurisdiction out of respect
for foreign sovereignty.”125
As it stands, international comity is by itself no longer a
simple matter. In quoting an 1895 US case, Hilton v.
Guyot,126 Paul argues that at the beginning of the 20th
century, the underlying principle of international comity
was the respect afforded by one sovereign to another. At
present, however, Paul posits:
_______________
125 J. Paul, The Transformation of International Comity (2008)

<http://www.law.duke.edu/journals/lcp>.
124 Id., at p. 4.
126 Id., at p. 27.
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For all these reasons, international comity would seem to

be too vague, incoherent, illusory, and ephemeral to serve as
a foundation for U.S. private international law. Yet, it is precisely
these qualities that have allowed the doctrine of international
comity to mutate over time in ways that respond to different
geopolitical circumstances. Specifically, international comity
has shifted in three distinct respects. First, the meaning of
comity has shifted over time. Originally, international comity
was a discretionary doctrine that empowered courts to decide
when to defer to foreign law out of respect for foreign sovereigns.
Comity has become a rule that obligates courts to apply foreign
law in certain circumstances. Second, the object of comity has
changed. Whereas once courts justified applying foreign law out
of deference to foreign sovereigns, courts later justified their
decisions out of deference to the autonomy of private parties or to
the political branches. Most recently, courts have justified limits
on domestic law out of deference to the global market. Third, the
function of comity has changed. Comity is no longer merely a
doctrine for deciding when to apply foreign law; it has become a
justification for deference in a wide range of cases concerning
prescriptive, adjudicatory, and enforcement jurisdiction.
On a substantive note, another issue raised in BAYAN v.

Zamora is whether the VFA amounted to an abdication of
Philippine sovereignty insofar as the jurisdiction of local
courts “to hear and try offenses committed by US military
personnel”127 was concerned. Upon finding at the outset
that the VFA did not amount to grave abuse of discretion,
this court no longer proceeded to rule on this matter:
In fine, absent any clear showing of grave abuse of

discretion on the part of respondents, this Court — as the
final arbiter of legal controversies
_______________
127 Supra note 118 at p. 646; p. 477.
208

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and staunch sentinel of the rights of the people — is then

without power to conduct an incursion and meddle with
such affairs purely executive and legislative in character
and nature. For the Constitution no less, maps out the distinct
boundaries and limits the metes and bounds within which each of
the three political branches of government may exercise the

powers exclusively and essentially conferred to it by law.128
(Emphasis supplied)
In sum, the extent of the VFA’s categorization as

between the Philippine and United States government —
either as a “treaty”/“executive agreement” or as a matter
subject to international comity — remains vague.
Nevertheless, it is certain that the United States have
made a political commitment to recognize the provisions
and execute their obligations under the VFA. This includes
respecting jurisdictional issues in cases involving an
offense committed by a US military personnel.
Sovereign immunity as cus-
tomary international law
Customary international law traditionally pertains to:
. . . the collection of international behavioral regularities

that nations over time come to view as binding on them as a
matter of law. This standard definition contain two elements.
There must be a widespread and uniform practice of
nations. And nations must engage in the practice out of a
sense of legal obligation. This second requirement, often
referred to as opinio juris, is the central concept of CIL. Because
opinio juris refers to the reason why a nation acts in accordance
with a behavioral regularity, it is often described as the
“psychological” element of CIL. It is what
_______________
128 Id., at p. 666; p. 497.
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distinguishes a national act done voluntarily or out of comity from

one that a nation follows because required to do so by law. Courts
and scholars say that a longstanding practice among nations
“ripens” or “hardens” into a rule of CIL when it becomes accepted
by nations as legally binding.129 (Emphasis supplied, citation
omitted)
Nagan and Root130 categorize the doctrine of sovereign

immunity as a customary rule of international law. They
argue that the doctrine, which is also referred to as
jurisdictional immunity, “has its roots in treaties, domestic
statutes, state practice, and the writings of juris
consults.”131 Quoting United States law,132 Nagan and Root

state:
. . . The doctrine of jurisdictional immunity takes the

abstract concept of sovereignty and applies it to facts on
the ground. As the Restatement notes, “Under international law,
a state or state instrumentality is immune from the jurisdiction of
the courts of another state . . . .” The Restatement further states
unambiguously that the rule of sovereign immunity is “an
undisputed principle of international law.” . . .
The doctrine of sovereign immunity is one of the older
concepts in customary international law. . . .133 (Emphasis
supplied, citation omitted)
While the doctrine in itself is recognized by states, they

do so only in abstraction.134
_______________
129 E. Posner and J. L. Goldsmith, A Theory of Customary

International Law (John M. Olin Program in Law and Economics
Working Paper No. 63) 5 (1998).
130 Supra note 113.
131 Id., at p. 4.
132 Restatement (Third) of Foreign Relations Law.
133 Id., at p. 38.
210

Arigo vs. Swift
There appears to be a general recognition that foreign

states are to be afforded immunity on account of equality of
states, but the “practice” lacks uniformity. Finke points out
that the doctrine as exercised by different states suffers
from “substantial disagreement on detail and
135
substance.” The inconsistencies in state practice render
the possibility of invoking international comity even more
problematic.
The legislation of other states highlight the differences
in specific treatment of sovereign immunity. For instance,
the United States Foreign Sovereign Immunities Act
(FSIA) of 1978 was enacted in order to render uniform
determinations in cases involving sovereign immunity.136
While it recognizes sovereign immunity, it provides the
following exceptions:
. . . the general principle that a foreign state is immune

from the jurisdiction of the courts of the United States, but
sets forth several limited exceptions. The primary exceptions
are:
1. waiver (“the foreign state has waived its immunity either
expressly or by implication”),
2. commercial activity (“the action is based upon a
commercial activity carried on in the United States by the foreign
state”), and
3. torts committed by a foreign official within the United
States (the “suit is brought against a foreign State for personal
injury or death, or damage to property occurring in the
United States as a result of the tortious act of an official or
employee of that State acting within the scope of his office
or employment”). (Emphasis supplied, citation omitted)
_______________
135 Id., at p. 871.

136 J. K. Elsea and S. V. Yousef, The Foreign Sovereign Immunities
Act (FSIA) and Foreign Officials, Congressional Research Service 7-5700
(2013).
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The United Kingdom State Immunity Act of 1978 also

recognizes general immunity from jurisdiction, subject to
the following exceptions: a) submission to jurisdiction;137 b)
commercial transactions and contracts to be performed in
the United Kingdom;138 c) contracts of employment;139 d)
personal injuries and damage to property;140 e) ownership,
possession, and use of property;141 f) patents, trademarks,
etc.;142 g) mem-
_______________
137 United Kingdom State Immunity Act of 1978, part I, 2–(1)

provides: “A State is not immune as respects proceedings in respect of
which it has submitted to the jurisdiction of the courts of the United
Kingdom.”
provides: “A State is not immune as respects proceedings relating to — (a)
a commercial transaction entered into by the State; or (b) an obligation of
the State which by virtue of a contract (whether a commercial transaction
or not) falls to be performed wholly or partly in the United Kingdom.”

provides: “A State is not immune as respects proceedings relating to a
contract of employment between the State and an individual where the
contract was made in the United Kingdom or the work is to be wholly or
partly performed there.”
provides: “A State is not immune as respects proceedings in respect of —
(a) death or personal injury; or (b) damage to or loss of tangible property,
caused by an act or omission in the United Kingdom.”
provides: “A State is not immune as respects proceedings relating to — (a)
any interest of the State in, or its possession or use of, immovable
property in the United Kingdom; or (b) any obligation of the State arising
out of its interest in, or its possession or use of, any such property.”
provides: A State is not immune as respects proceedings relating to — (a)
any patent, trademark, design or plant breeders’ rights belonging to the
State and registered or protected in the United Kingdom or for which the
State has applied in the United Kingdom; (b) an alleged infringement by
the State in the United Kingdom of any
212

Arigo vs. Swift
bership of bodies corporate, etc.;143 h) arbitration;144 i) ships

used for commercial purposes;145 and j) value-added tax,
customs duties, etc.146
The Australian Foreign States Immunities Act of 1985
provides for exceptions similar to the ones found in the
United Kingdom law.147
_______________
patent, trademark, design, plant breeders’ rights or copyright; or (c) the

right to use a trade or business name in the United Kingdom.
provides: A State is not immune as respects proceedings relating to its
membership of a body corporate, an unincorporated body or a partnership
which — (a) has members other than States; and (b) is incorporated or
constituted under the law of the United Kingdom or is controlled from or
has its principal place of business in the United Kingdom, being
proceedings arising between the State and the body or its other members
or, as the case may be, between the State and the other partners.
provides: Where a State has agreed in writing to submit a dispute which
has arisen, or may arise, to arbitration, the State is not immune as
respects proceedings in the courts of the United Kingdom which relate to

the arbitration.
provides: A State is not immune as respects — (a) an action in rem
against a ship belonging to that State; or (b) an action in personam for
enforcing a claim in connection with such a ship.
provides: A State is not immune as respects proceedings relating to its
liability for — (a) value-added tax, any duty of customs or excise or any
agricultural levy; or (b) rates in respect of premises occupied by it for
commercial purposes.
147 Part II of the law provides for the following exceptions: (a)
submission to jurisdiction; (b) commercial transactions; (c) contracts of
employment; (d) personal injury and damage to property; (e) ownership,
possession, and use of property, etc.; (f) copyright, patents, trademarks,
etc.; (g) membership of bodies corporate etc.; (h) arbitrations; (i) actions in
rem; (j) bills of exchange; and (k) taxes.

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Aside from the variations in foreign laws, rulings in

domestic cases have also remained on a theoretical level.
There appears to be a general refusal by international
bodies to set particular rules and guidelines for the
disposition of actual cases involving sovereign immunity.
Two cases are relevant for the purpose of discussing
sovereign immunity as an international customary norm:
the International Court of Justice’s decision in Germany v.
Italy, and the International Tribunal for the Law of the
Sea’s procedural order on the Ara Libertad case. While
stare decisis does not apply, these are nevertheless
instructive in understanding the status of sovereign
immunity in international law.
The issue of sovereign immunity as invoked between two
States was dealt with in the 2012 case of Jurisdictional
Immunities of the State (Germany v. Italy).148 This arose
out of a civil case brought before Italian domestic courts,
seeking reparations from Germany for grave breaches of
international humanitarian law during World War II.149
The Italian Court of Cassation held that it had jurisdiction
over the claims on the ground that state immunity was
untenable if the act complained of was an international
crime.150 Thereafter, an Italian real estate owned by
Germany was attached for execution.151 As a result,
Germany brought the case before the International Court

of Justice, questioning the legality of the judgment
rendered by the Italian court. It based its claim on state
immunity.152
_______________
148 Jurisdictional Immunities of the State (Germany v. Italy) (2012);

See also P. B. Stephan, Sovereign Immunity and the International Court of
Justice: The State System Triumphant, Virginia Public Law and Legal
Theory Research Paper No. 2012-47 (2012)
<http://ssrn.com/abstract=2137805>.
149 Id., at pars. 27-29.
150 Id.
151 Id., at par. 37.
152 Id.
214

Arigo vs. Swift
The International Court of Justice ruled that Italy had

violated customary international law when it took
cognizance of the claim against Germany before its local
courts.153 It held that:
In the present context, State practice of particular

significance is to be found in the judgments of national
courts faced with the question whether a foreign State is
immune, the legislation of those States which have enacted
statutes dealing with immunity, the claims to immunity
advanced by States before foreign courts and the
statements made by States, first in the course of the
extensive study of the subject by the International Law
Commission and then in the context of the adoption of the
United Nations Convention. Opinio juris in this context is
reflected in particular in the assertion by States claiming
immunity that international law accords them a right to
such immunity from the jurisdiction of other States; in the
acknowledgment, by States granting immunity, that
international law imposes upon them an obligation to do
so; and, conversely, in the assertion by States in other cases
of a right to exercise jurisdiction over foreign States. While
it may be true that States sometimes decide to accord an
immunity more extensive than that required by international law,
for present purposes, the point is that the grant of immunity in
such a case is not accompanied by the requisite opinio juris and
therefore sheds no light upon the issue currently under

consideration by the Court.
56. Although there has been much debate regarding the
origins of State immunity and the identification of the principles
underlying that immunity in the past, the International Law
Commission concluded in 1980 that the rule of State
immunity had been “adopted as a general rule of customary
interna-
_______________
153 Id., at par. 79.
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tional law solidly rooted in the current practice of States”

(Yearbook of the International Law Commission, 1980, Vol. II[2],
p. 147, para. 26). That conclusion was based upon an
extensive survey of State practice and, in the opinion of the
Court, is confirmed by the record of national legislation,
judicial decisions, assertions of a right to immunity and
the comments of States on what became the United Nations
Convention. That practice shows that, whether in claiming
immunity for themselves or according it to others, States
generally proceed on the basis that there is a right to
immunity under international law, together with a
corresponding obligation on the part of other States to
respect and give effect to that immunity.
57. The Court considers that the rule of State immunity
occupies an important place in international law and
international relations. It derives from the principle of
sovereign equality of States, which, as Article 2, paragraph
1, of the Charter of the United Nations makes clear, is one
of the fundamental principles of the international legal
order.
This principle has to be viewed together with the
principle that each State possesses sovereignty over its own
territory and that there flows from that sovereignty the
jurisdiction of the State over events and persons within
that territory. Exceptions to the immunity of the State
represent a departure from the principle of sovereign
equality. Immunity may represent a departure from the principle
of territorial sovereignty and the jurisdiction which flows from it.
(Emphasis supplied)154
The International Court of Justice deemed it

unnecessary to discuss the difference between the
application of sovereign immunity in sovereign acts (jus
imperii) and non-sovereign
_______________
154 Id., at pars. 55-57.
216

Arigo vs. Swift
activities (jus gestionis) of a State.155 As to the argument

that a serious violation of international law or peremptory
norms (jus cogens) is an exception to sovereign immunity,
the International Court of Justice held that:
82. At the outset, however, the Court must observe that the
proposition that the availability of immunity will be to some
extent dependent upon the gravity of the unlawful act presents a
logical problem. Immunity from jurisdiction is an immunity
not merely from being subjected to an adverse judgment but
from being subjected to the trial process. It is, therefore,
necessarily preliminary in nature. Consequently, a
national court is required to determine whether or not a
foreign State is entitled to immunity as a matter of
international law before it can hear the merits of the case
brought before it and before the facts have been
established. If immunity were to be dependent upon the
State actually having committed a serious violation of
international human rights law or the law of armed
conflict, then it would become necessary for the national
court to hold an enquiry into the merits in order to
determine whether it had jurisdiction. If, on the other
hand, the mere allegation that the State had committed
such wrongful acts were to be sufficient to deprive the State
of its entitlement to immunity, immunity could, in effect be
negated simply by skilful construction of the claim.
83. That said, the Court must nevertheless inquire whether
customary international law has developed to the point where a
State is not entitled to immunity in the case of serious violations
of human rights law or the law of armed conflict. Apart from the
decisions of the Italian courts which are the subject of the present
proceedings, there is almost no State practice which might be
considered to support the proposition that a
_______________
155 Id., at par. 60.
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State is deprived of its entitlement to immunity in such a case. . . .

84. In addition, there is a substantial body of State practice
from other countries which demonstrates that customary
international law does not treat a State’s entitlement to
immunity as dependent upon the gravity of the act of which
it is accused or the peremptory nature of the rule which it is
alleged to have violated.
85. That practice is particularly evident in the
judgments of national courts. Arguments to the effect that
international law no longer required State immunity in
cases of allegations of serious violations of international
human rights law, war crimes or crimes against humanity
have been rejected by the courts in Canada (Bouzari v. Islamic
Republic of Iran, Court of Appeal of Ontario, [2004] Dominion
Law Reports [DLR], 4th Series, Vol. 243, p. 406; ILR, Vol. 128, p.
586; allegations of torture), France (judgment of the Court of
Appeal of Paris, 9 September 2002, and Cour de cassation, No. 02-
45961, 16 December 2003, Bulletin civil de la Cour de cassation
[Bull. civ.], 2003, I, No. 258, p. 206 [the Bucheron case]; Cour de
cassation, No.
03-41851, 2 June
2004, Bull. civ., 2004, I, No. 158, p. 132 [the X
case] and Cour de cassation, No. 04-47504, 3 January 2006 [the
Grosz case]; allegations of crimes against humanity], Slovenia
[case No. Up-13/99, Constitutional Court of Slovenia; allegations
of war crimes and crimes against humanity], New Zealand (Fang
v. Jiang, High Court, [2007] New Zealand Administrative Reports
[NZAR], p. 420; ILR, Vol. 141, p. 702; allegations of torture),
Poland (Natoniewski, Supreme Court, 2010, Polish Yearbook of
International Law, Vol. XXX, p. 299, [2010]; allegations of war
crimes and crimes against humanity) and the United Kingdom
(Jones v. Saudi Arabia, House of Lords, [2007] 1 Appeal Cases
[AC] 270; ILR, Vol. 129, p. 629; allegations of torture).
....
218

Arigo vs. Swift
93. This argument therefore depends upon the existence of a

conflict between a rule, or rules, of jus cogens, and the rule of
customary law which requires one State to accord immunity to
another. In the opinion of the Court, however, no such conflict
exists. Assuming for this purpose that the rules of the law of
armed conflict which prohibit the murder of civilians in occupied
territory, the deportation of civilian inhabitants to slave labour
and the deportation of prisoners of war to slave labour are rules of
jus cogens, there is no conflict between those rules and the rules
on State immunity. The two sets of rules address different
matters. The rules of State immunity are procedural in
character and are confined to determining whether or not
the courts of one State may exercise jurisdiction in respect
of another State. They do not bear upon the question
whether or not the conduct in respect of which the
proceedings are brought was lawful or unlawful. That is
why the application of the contemporary law of State immunity to
proceedings concerning events which occurred in 1943-1945 does
not infringe the principle that law should not be applied
retrospectively to determine matters of legality and responsibility
(as the Court has explained in paragraph 58 above). For the
same reason, recognizing the immunity of a foreign State in
accordance with customary international law does not
amount to recognizing as lawful a situation created by the
breach of a jus cogens rule, or rendering aid and assistance
in maintaining that situation, and so cannot contravene
the principle in Article 41 of the International Law
Commission’s Articles on State Responsibility.
95. To the extent that it is argued that no rule which is
not of the status of jus cogens may be applied if to do so
would hinder the enforcement of a jus cogens rule, even in
the absence of a direct conflict, the Court sees no basis for
such a proposition. A jus cogens rule is one from which no
derogation is permitted but the rules which determine the scope
and extent of jurisdiction and when that jurisdiction may be
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Arigo vs. Swift
exercised do not derogate from those substantive rules which

possess jus cogens status, nor is there anything inherent in the
concept of jus cogens which would require their modification or
would displace their application. The Court has taken that
approach in two cases, notwithstanding that the effect was that a
means by which a jus cogens rule might be enforced was rendered
unavailable. In Armed Activities, it held that the fact that a
rule has the status of jus cogens does not confer upon the
Court a jurisdiction which it would not otherwise possess
(Armed Activities on the Territory of the Congo [New Application:
2002] [Democratic Republic of the Congo v. Rwanda], Jurisdiction
and Admissibility, Judgment, I.C.J. Reports 2006, p. 32, para. 64,
and p. 52, para. 125). In Arrest Warrant, the Court held, albeit
without express reference to the concept of jus cogens, that the
fact that a Minister for Foreign Affairs was accused of criminal
violations of rules which undoubtedly possess the character of jus
cogens did not deprive the Democratic Republic of the Congo of
the entitlement which it possessed as a matter of customary
international law to demand immunity on his behalf (Arrest
Warrant of 11 April 2000 [Democratic Republic of the Congo v.
Belgium], Judgment, I.C.J. Reports 2002, p. 24, para. 58, and p.
33, para. 78). The Court considers that the same reasoning is
applicable to the application of the customary international law
regarding the immunity of one State from proceedings in the
courts of another.156
Though pertaining to provisional measures, another

case that involved the issue of sovereign immunity is the
“Ara Libertad” case (Argentina v. Ghana). Lodged before
the International Tribunal for the Law of the Sea (ITLOS),
the case arose after “ARA Fragata Libertad,” an
Argentinian warship, was alleged to have been detained
and subjected to several judicial measures by the Republic
of Ghana.157 In doing so, Argentina alleged that Ghana
violated the immunities from
_______________
156 Id., at pars. 82-95.

157 Id., at par. 26.
220

Arigo vs. Swift
jurisdiction and execution extended to the warship by its

flag.158
Ghana countered:
. . . that the coastal State [Ghana] enjoys full territorial

sovereignty over internal waters, and that any foreign
vessel located in internal waters is subject to the
legislative, administrative, judicial and jurisdictional
powers of the coastal State.”159 (Emphasis supplied)
The order dated December 15, 2012 ruled the following:

. . . that a warship is an expression of the sovereignty of the
State whose flag it flies;160
. . . in accordance with general international law, a warship
enjoys immunity, including in internal waters. . . .161
....
Ghana shall forthwith and unconditionally release the frigate
ARA Libertad, shall ensure that the frigate ARA Libertad, its
Commander and crew are able to leave the port of Tema and the
maritime areas under the jurisdiction of Ghana, and shall ensure
that the frigate ARA Libertad is resupplied to that end.162
(Citation supplied)
In sum, the International Court of Justice’s position that

sovereign immunity remains applicable even if the action is
based upon violations of international law should be
limited only to acts during armed conflict. Jurisdictional
Immunities of the State (Germany v. Italy) also referred to
actions commited during World War II and especially
referred to the
_______________
158 Id.
159 Id., at par. 56.
160 Id., at par. 94.
161 Id., at par. 95.
162 Id., at par. 108.
221
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Arigo vs. Swift
situation of international law at that time. The majority

reflected the attitude that sovereign immunity is a
customary norm. It, however, recognizes that uniformity in
state practice is far from the consensus required to
articulate specific rules pertaining to other circumstances
— such as transgressions of foreign warships of domestic
legislation while granted innocent passage. It impliedly
accepted that states enjoyed wide latitude to specify their
own norms.
The provisional order in the ITLOS Ara Libertad case
should also be read within its factual ambient. That is, that
the warship was the subject of seizure to enforce a
commercial obligation of its flag state. In this case, the
foreign warship enjoys sovereign immunity. The case,
however, did not interpret Sections 31 and 32 of the

UNCLOS.
On this note, it is my opinion that there would be
no violation of customary international law or
existing treaty law if this court further refines the
limits of the doctrine of sovereign immunity’s
application when determining jurisdictional
immunities of foreign warships specifically when it
violates domestic laws implementing international
obligations even while on innocent passage.

Sovereign immunity as
general principle of law

There are indications from international legal scholars
that sovereign immunity might make more sense if it is
understood as a general principle of international law
rather than as international obligation arising out of treaty
or customary norm.
Finke suggests that this provides the better platform.
Whereas a rule is more precise and consistent in both its
application and legal consequences, a principle “allows for a
222

Arigo vs. Swift
broader spectrum of possible behaviour.”163 Principles

recognize a general idea and serve as a guide in policy
determinations, rather than prescribe a particular mode of
action, which is what rules do. This distinction is
significant, as principles provide the leeway to
accommodate legal and factual circumstances surrounding
each case that customary rules generally do not.164
General principles of international law are said to be:
. . . an autonomous, created by general consensus,

systematically fundamental part of International Law, that
consists of different normative notions, in which judges refer to,
through a creative process, in order to promote the consistency of
International Law.165
Clearly, sovereign immunity is a doctrine recognized by

states under the international law system. However, its
characterization as a principle is more appropriate in that
“the extent to which foreign states are awarded immunity
differs from state to state.”166 This appears to be an
accepted arrangement in light of the different state

immunity laws all over the world.
As it stands, states are allowed to draw the line in the
application of sovereign immunity in cases involving
foreign states and their agents. As a principle of
international law, it is deemed automatically incorporated
in our domestic legal system as per Article II, Section 2 of
the Constitution. Considering this leeway, along with the
urgency and importance of the case at hand, the
Philippines is, therefore, free to provide guidelines
consistent with international law, domestic legislation, and
existing jurisprudence.
_______________

164 Id.
165 M. Panezi, Sources of Law in Transition: Re-visiting general
principles of International Law, Ancilla Juris 71 (2007)
<http://www.ejil.org/pdfs/21/4/2112.pdf>.

223
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Exceptions to sovereign
immunity
Our own jurisprudence is consistent with the

pronouncement that the doctrine of sovereign immunity is
not an absolute rule. Thus, the doctrine should take the
form of relative sovereign jurisdictional immunity.167
The tendency in our jurisprudence moved along with the
development in other states.
States began to veer away from absolute sovereign
immunity when “international trade increased and
governments expanded into what had previously been
private spheres.”168 The relative theory of sovereign
immunity distinguishes a state’s official (acta jure imperii)
from private (acta jure gestionis) conduct.169 The distinction
is founded on the premise “[that] once the sovereign has
descended from his throne and entered the marketplace[,]
he has divested himself of his sovereign status and is
therefore no longer immune to the domestic jurisdiction of
the courts of other countries.”170
In the 2003 case of Republic of Indonesia v. Vinzon, this

court enunciated that in cases involving foreign states, the
basis of sovereign immunity is the maxim par in parem non
habet imperium. Founded on sovereign equality, a state
cannot assert its jurisdiction over another.171 To do so
otherwise would “unduly vex the peace of nations.”172
However, it also underscored that the doctrine only applies
to public acts or acts jure imperii, thus, referring to the
relative theory. JUS-
_______________
167 Id., at p. 853.

168 N.J. Shmalo, Is the Restrictive Theory of Sovereign Immunity
Workable? Government Immunity and Liability, 17(3) International
Stanford Law Review 501-507 (1965).
170 Id., at p. 859.
171 Supra note 92 at p. 1107; p. 131.
172 Id.
224

Arigo vs. Swift
MAG Philippines v. NLRC173 discussed the restrictive

application:
In this jurisdiction, we recognize and adopt the generally

accepted principles of international law as part of the law of the
land. Immunity of State from suit is one of these universally
recognized principles. In international law, “immunity” is
commonly understood as an exemption of the state and its
organs from the judicial jurisdiction of another state. This
is anchored on the principle of the sovereign equality of states
under which one state cannot assert jurisdiction over another in
violation of the maxim par in parem non habet imperium (an
equal has no power over an equal).
....
As it stands now, the application of the doctrine of
immunity from suit has been restricted to sovereign or
governmental activities (jure imperii). The mantle of state
immunity cannot be extended to commercial, private and
proprietary acts (jure gestionis).174 (Emphasis supplied,
citations omitted)
In United States of America v. Ruiz,175 which dealt with

a contract involving the repair of wharves in Subic Bay’s
US naval installation, this court further adds that:
. . . the correct test for the application of State immunity

is not the conclusion of a contract by a State but the legal
nature of the act. . . .176 (Emphasis supplied)
_______________
173 G.R. No. 108813, December 15, 1994, 239 SCRA 224 [Per J. Puno,
Second Division].
174 Id., at pp. 230-232.
175 221 Phil. 179; 136 SCRA 487 (1985) [Per J. Abad Santos, En
Banc].
176 Id., at p. 184; p. 492.
225
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Arigo vs. Swift
In JUSMAG, this court stated:
. . . if the contract was entered into in the discharge of its

governmental functions, the sovereign state cannot be
deemed to have waived its immunity from suit.177 (Emphasis
supplied, citation omitted)
These cases involved contracts. This made the

determination of whether there was waiver on the part of
the state simpler.
Further in Municipality of San Fernando, La Union v.
Firme,178 this court stated that two exceptions are a) when
the State gives its consent to be sued and b) when it enters
into a business contract.179 It ruled that:
Express consent may be embodied in a general law or a

special law.
....
Consent is implied when the government enters into
business contracts, thereby descending to the level of the other
contracting party, and also when the State files a complaint,
thus opening itself to a counterclaim.180 (Emphasis supplied,
citations omitted)
Other exceptions are cases involving acts unauthorized

by the State, and violation of rights by the impleaded
government official. In the 1970 case of Director of Bureau
of Telecommunications, et al. v. Aligaen, et al.,181 this court

held that:
_______________

178 273 Phil. 56; 195 SCRA 692 (1991) [Per J. Medialdea, First
Division].
179 Id., at p. 62; p. 697.
180 Id.
181 144 Phil. 257; 33 SCRA 368 (1970) [Per J. Zaldivar, En Banc].
226

Arigo vs. Swift
Inasmuch as the State authorizes only legal acts by its officers,

unauthorized acts of government officials or officers are
not acts of the State, and an action against the officials or
officers by one whose rights have been invaded or violated
by such acts, for the protection of his rights, is not a suit
against the State within the rule of immunity of the State
from suit. In the same tenor, it has been said that an action at
law or suit in equity against a State officer or the director
of a State department on the ground that, while claiming to
act for the State, he violates or invades the personal and
property rights of the plaintiff, under an unconstitutional
act or under an assumption of authority which he does not
have, is not a suit against the State within the
constitutional provision that the State may not be sued
without its consent.182 (Emphasis supplied, citations omitted)

Shauf v. Court of Appeals183 evolved the doctrine further
as it stated that “[the] rational for this ruling is that the
doctrine of state immunity cannot be used as an
instrument for perpetrating an injustice.”184

Tortious acts or crimes committed while discharging
official functions are also not covered by sovereign
immunity. Quoting the ruling in Chavez v.
185
Sandiganbayan, this court held American naval officers
personally liable for damages in Wylie v. Rarang,186 to wit:
_______________
182 Id., at pp. 267-268; pp. 377-378.
183 G.R. No. 90314, November 27, 1990, 191 SCRA 713 [Per J.
Regalado, Second Division].
184 Id., at p. 727.
185 271 Phil. 293 (1991); 193 SCRA 282 [Per J. Gutierrez, Jr., En
Banc].
186 G.R. No. 74135, May 28, 1992, 209 SCRA 357 [Per J. Gutierrez,
Jr., Third Division].
227
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Arigo vs. Swift
. . . The petitioners, however, were negligent because under

their direction they issued the publication without deleting the
name “Auring.” Such act or omission is ultra vires and cannot be
part of official duty. It was a tortious act which ridiculed the
private respondent.187
We note that the American naval officers were held to be

accountable in their personal capacities.188
As it stands, the Philippines has no law on the
application of sovereign immunity in cases of damages
and/or violations of domestic law involving agents of a
foreign state. But our jurisprudence does have openings to
hold those who have committed an act ultra vires
responsible in our domestic courts.
As previously discussed, it was held in Germany v. Italy
that the issue of implied waiver of sovereign immunity and
a State’s commission of a serious violation of a peremptory
norm (jus cogens) are two independent areas. This reflects
one of the positions taken by scholars in the jurisdiction-
immunity discourse:
Jurisdiction and its limits have developed differently

depending on the subject matter. The jurisdiction to adjudicate in
civil matters has, for example, developed mainly in the context of
private international law, even though it is not unrelated to
public international law. Immunity, on the other hand, is
linked to official acts of a state (if we accept the principal
distinction between private and public acts) and is
therefore more sensitive to the sovereignty of the foreign
state. Linking immunity to the limits of jurisdiction to adjudicate
in civil matters would therefore mean disre-
_______________
187 Id., at p. 370.
188 Id.
228

Arigo vs. Swift
garding the official character of the foreign state’s conduct.189

This ruling holds no value as a precedent, and,

therefore, does not preclude the Philippines to make a
determination that may be different from the International
Court of Justice’s ruling. Its value must only be to elucidate
on the concept of sovereign immunity, in the context of that
case, as the general rule with the possibility of other
exceptions.
Furthermore, if we consider the doctrine of sovereign
immunity as a binding general principle of international
law rather than an international customary norm, the
particular rules and guidelines in its application and
invocation may be determined on a domestic level either
through statute or by jurisprudence.
It is difficult to imagine that the recognition of equality
among nations is still, in these modern times, as absolute
as we have held it to be in the past or only has commercial
acts as an exception. International law has conceded jus
cogens rules of international law and other obligations erga
omnes. It is time that our domestic jurisprudence adopts
correspondingly.
Considering the flexibility in international law and the
doctrines that we have evolved so far, I am of the view
that immunity does not necessarily apply to all the
foreign respondents should the case have been
brought in a timely manner, with the proper remedy,
and in the proper court. Those who have directly and
actually committed culpable acts or acts resulting
from gross negligence resulting in the grounding of a
foreign warship in violation of our laws defining a
tortious act or one that protects the environment
which implement
_______________
229
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Arigo vs. Swift
binding international obligations cannot claim

sovereign immunity.
Certainly, this petition being moot and not brought by
the proper parties, I agree that it is not the proper case
where we can lay down this doctrine. I, therefore, can only
concur in the result.
ACCORDINGLY, I vote to DISMISS the petition.
Petition denied.
Notes.—The Civil Service Commission has standing as

a real party in interest and can appeal the Court of
Appeals’ decisions modifying or reversing the Civil Service
Commission’s rulings, when the Court of Appeals action
would have an adverse impact on the integrity of the civil
service. (Civil Service Commission vs. Almojuela, 694
SCRA 441 [2013])
Immunity statutes seek to provide a balance between
the state’s interests and the individual’s right against self-
incrimination. (People vs. Sandiganbayan [Fourth
Division], 699 SCRA 713 [2013])
——o0o——
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10/10/21, 12:58 PM SUPREME COURT REPORTS ANNOTATED VOLUME 735

G.R. No. 206510. September 16, 2014.*

VOL. 735, SEPTEMBER 16, 2014 103

ROBLING, US Marine Corps Forces, Pacific and Balikatan

Remedial Law; Civil Procedure; Locus Standi; Words and

104 SUPREME COURT REPORTS ANNOTATED

Arigo vs. Swift

Petitioners minors assert that they represent their

defined as “a body of treaty rules and customary norms governing

VOL. 735, SEPTEMBER 16, 2014 105

Arigo vs. Swift

sea, the exploitation of its resources, and the exercise of jurisdiction

States and the Philippine government in the matter of criminal

106 SUPREME COURT REPORTS ANNOTATED

Arigo vs. Swift

The invocation of US federal tort laws and even common law is

be implemented at the cost of the violator is also a major relief

VOL. 735, SEPTEMBER 16, 2014 107

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tion, preservation or rehabilitation of the environment and the

108 SUPREME COURT REPORTS ANNOTATED

Arigo vs. Swift

on the status and functions of the state or official in question.”

VOL. 735, SEPTEMBER 16, 2014 109

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would remove the immunity of the United States in order to place

Factoran, 224 SCRA 792 (1993). In my view, there is need to

110 SUPREME COURT REPORTS ANNOTATED

Arigo vs. Swift

the social costs or negative externalities of such initiatives. This

for determining the extent of jurisdictional immunities that

VOL. 735, SEPTEMBER 16, 2014 111

Arigo vs. Swift

Remedial Law; Civil Procedure; Jurisdiction; Environmental

Same; Same; Representatives; Environmental Cases; View

112 SUPREME COURT REPORTS ANNOTATED

Arigo vs. Swift

wise an outsider to the cause of action. This rule enumerates who

VOL. 735, SEPTEMBER 16, 2014 113

Arigo vs. Swift

unable to take part in the suit, putting into question its

114 SUPREME COURT REPORTS ANNOTATED

Arigo vs. Swift

a private individual or entity must be felt in at least two cities or

VOL. 735, SEPTEMBER 16, 2014 115

Arigo vs. Swift

grounded USS Guardian have been concluded. Furthermore, the

sovereign immunity. Some clarification may be necessary to

116 SUPREME COURT REPORTS ANNOTATED

Arigo vs. Swift

Same; Same; Same; European Convention on State Immunity;

principle stated above and that of relative State immunity

VOL. 735, SEPTEMBER 16, 2014 117

Arigo vs. Swift

cludes respecting jurisdictional issues in cases involving an

remains applicable even if the action is based upon violations of

118 SUPREME COURT REPORTS ANNOTATED

Arigo vs. Swift