Professional Documents
Culture Documents
Elizalde Malaloan vs. CA, G.R. No. 104879, May 6, 1994
Elizalde Malaloan vs. CA, G.R. No. 104879, May 6, 1994
REGALADO, J.:
Creative legal advocacy has provided this Court with another primae impressionis case through the present petition
wherein the parties have formulated and now pose for resolution the following issue: Whether or not a court may take
cognizance of an application for a search warrant in connection with an offense committed outside its territorial boundary
and, thereafter, issue the warrant to conduct a search on a place outside the court's supposed territorial jurisdiction. 1
The factual background and judicial antecedents of this case are best taken from the findings of respondent Court of
Appeals 2 on which there does not appear to be any dispute, to wit:
From the pleadings and supporting documents before the Court, it can be gathered that on March 22,
1990, 1st Lt. Absalon V. Salboro of the CAPCOM Northern Sector (now Central Sector) filed with the
Regional Trial Court of Kalookan City an application for search warrant. The search warrant was sought
for in connection with an alleged violation of P.D. 1866 (Illegal Possession of Firearms and Ammunitions)
perpetrated at No. 25 Newport St., corner Marlboro St., Fairview, Quezon City. On March 23, 1990,
respondent RTC Judge of Kalookan City issued Search Warrant No. 95-90. On the same day, at around
2:30 p.m., members of the CAPCOM, armed with subject search warrant, proceeded to the situs of the
offense alluded to, where a labor seminar of the Ecumenical Institute for Labor Education and Research
(EILER) was then taking place. According to CAPCOM's "Inventory of Property Seized," firearms,
explosive materials and subversive documents, among others, were seized and taken during the search.
And all the sixty-one (61) persons found within the premises searched were brought to Camp Karingal,
Quezon City but most of them were later released, with the exception of the herein petitioners, EILER
Instructors, who were indicated for violation of P.D. 1866 in Criminal Case No. Q-90-11757 before Branch
88 of the Regional Trial Court of Quezon City, presided over by respondent Judge Tirso D.C. Velasco.
On July 10, 1990, petitioners presented a "Motion for Consolidation, Quashal of Search Warrant and For
the Suppression of All Illegally Acquired Evidence" before the Quezon City court; and a "Supplemental
Motion to the Motion for Consolidation, Quashal of Search Warrant and Exclusion of Evidence Illegally
Obtained.
On September 21, 1990, the respondent Quezon City Judge issued the challenged order, consolidating
subject cases but denying the prayer for the quashal of the search warrant under attack, the validity of
which warrant was upheld; opining that the same falls under the category of Writs and Processes, within
the contemplation of paragraph 3(b) of the Interim Rules and Guidelines, and can be served not only
within the territorial jurisdiction of the issuing court but anywhere in the judicial region of the issuing court
(National Capital Judicial Region);. . .
Petitioner's motion for reconsideration of the said Order under challenge, having been denied by the
assailed Order of October 5, 1990, petitioners have come to this Court via the instant petition, raising the
sole issue:
We are not favorably impressed by the arguments adduced by petitioners in support of their submissions. Their
disquisitions postulate interpretative theories contrary to the letter and intent of the rules on search warrants and which
could pose legal obstacles, if not dangerous doctrines, in the area of law enforcement. Further, they fail to validly
distinguish, hence they do not convincingly delineate the difference, between the matter of (1) the court which has the
competence to issue a search warrant under a given set of facts, and (2) the permissible jurisdictional range in the
enforcement of such search warrant vis-a-vis the court's territorial jurisdiction. These issues while effectively cognate are
essentially discrete since the resolution of one does not necessarily affect or preempt the other. Accordingly, to avoid
compounding the seeming confusion, these questions shall be discussedseriatim.
Petitioners invoke the jurisdictional rules in the institution of criminal actions to invalidate the search warrant issued by the
Regional Trial Court of Kalookan City because it is directed toward the seizure of firearms and ammunition allegedly
cached illegally in Quezon City. This theory is sought to be buttressed by the fact that the criminal case against petitioners
for violation of Presidential Decree No. 1866 was subsequently filed in the latter court. The application for the search
warrant, it is claimed, was accordingly filed in a court of improper venue and since venue in criminal actions involves the
territorial jurisdiction of the court, such warrant is void for having been issued by a court without jurisdiction to do so.
The basic flaw in this reasoning is in erroneously equating the application for and the obtention of a search warrant with
the institution and prosecution of a criminal action in a trial court. It would thus categorize what is only a special
criminal process, the power to issue which is inherent in all courts, as equivalent to a criminal action, jurisdiction over
which is reposed in specific courts of indicated competence. It ignores the fact that the requisites, procedure and purpose
for the issuance of a search warrant are completely different from those for the institution of a criminal action.
For, indeed, a warrant, such as a warrant of arrest or a search warrant, merely constitutes process. 4 A search warrant is
defined in our jurisdiction as an order in writing issued in the name of the People of the Philippines signed by a judge and
directed to a peace officer, commanding him to search for personal property and bring it before the court. 5 A search
warrant is in the nature of a criminal process akin to a writ of discovery. It is a special and peculiar remedy, drastic in its
nature, and made necessary because of a public necessity. 6
In American jurisdictions, from which we have taken our jural concept and provisions on search warrants, 7 such warrant
is definitively considered merely as a process, generally issued by a court in the exercise of its ancillary jurisdiction, and
not a criminal action to be entertained by a court pursuant to its original jurisdiction. We emphasize this fact for purposes
of both issues as formulated in this opinion, with the catalogue of authorities herein.
Invariably, a judicial process is defined as a writ, warrant, subpoena, or other formal writing issued by authority of law;
also the means of accomplishing an end, including judicial proceedings, 8 or all writs, warrants, summonses, and orders of
courts of justice or judicial officers. 9 It is likewise held to include a writ, summons, or order issued in a judicial proceeding
to acquire jurisdiction of a person or his property, to expedite the cause or enforce the judgment, 10 or a writ, warrant,
mandate, or other process issuing from a court of justice. 11
2. It is clear, therefore, that a search warrant is merely a judicial process designed by the Rules to respond only to an
incident in the main case, if one has already been instituted, or in anticipation thereof. In the latter contingency, as in the
case at bar, it would involve some judicial clairvoyance to require observance of the rules as to where a criminal case may
eventually be filed where, in the first place, no such action having as yet been instituted, it may ultimately be filed in a
territorial jurisdiction other than that wherein the illegal articles sought to be seized are then located. This is aside from the
consideration that a criminal action may be filed in different venues under the rules for delitos continuados or in those
instances where different trial courts have concurrent original jurisdiction over the same criminal offense.
In fact, to illustrate the gravity of the problem which petitioners' implausible position may create, we need not stray far from
the provisions of Section 15, Rule 110 of the Rules of Court on the venue of criminal actions and which we quote:
(b) Where an offense is committed on a railroad train, in an aircraft, or any other public or private vehicle
while in the course of its trip, the criminal action may be instituted and tried in the court of any municipality
or territory where such train, aircraft or other vehicle passed during such trip, including the place of
departure and arrival.
(c) Where an offense is committed on board a vessel in the course of its voyage, the criminal action may
be instituted and tried in the proper court of the first port of entry or of any municipality or territory through
which the vessel passed during such voyage, subject to the generally accepted principles of international
law.
(d) Other crimes committed outside of the Philippines but punishable therein under Article 2 of the
Revised Penal Code shall be cognizable by the proper court in which the charge is first filed. (14a)
It would be an exacting imposition upon the law enforcement authorities or the prosecutorial agencies to unerringly
determine where they should apply for a search warrant in view of the uncertainties and possibilities as to the ultimate
venue of a case under the foregoing rules. It would be doubly so if compliance with that requirement would be under pain
of nullification of said warrant should they file their application therefor in and obtain the same from what may later turn out
to be a court not within the ambit of the aforequoted Section 15.
Our Rules of Court, whether of the 1940, 1964 or the present vintage, and, for that matter, the Judiciary Act of 1948 12 or
the recent Judiciary Reorganization Act, 13 have never required the jurisdictional strictures that the petitioners' thesis
would seek to be inferentially drawn from the silence of the reglementary provisions. On the contrary, we are of the view
that said statutory omission was both deliberate and significant. It cannot but mean that the formulators of the Rules of
Court, and even Congress itself, did not consider it proper or correct, on considerations of national policy and the
pragmatics of experience, to clamp a legal manacle on those who would ferret out the evidence of a crime. For us to now
impose such conditions or restrictions, under the guise of judicial interpretation, may instead be reasonably construed as
trenching on judicial legislation. It would be tantamount to a judicial act of engrafting upon a law something that has been
omitted but which someone believes ought to have been embraced therein. 14
Concededly, the problem of venue would be relatively easier to resolve if a criminal case has already been filed in a
particular court and a search warrant is needed to secure evidence to be presented therein. Obviously, the court trying the
criminal case may properly issue the warrant, upon proper application and due compliance with the requisites therefor,
since such application would only be an incident in that case and which it can resolve in the exercise of its ancillary
jurisdiction. If the contraband articles are within its territorial jurisdiction, there would appear to be no further
complications. The jurisdictional problem would resurrect, however, where such articles are outside its territorial
jurisdiction, which aspect will be addressed hereafter.
3. Coming back to the first issue now under consideration, petitioners, after discoursing on the respective territorial
jurisdictions of the thirteen Regional Trial Courts which correspond to the thirteen judicial regions, 15invite our attention to
the fact that this Court, pursuant to its authority granted by
law, 16 has defined the territorial jurisdiction of each branch of a Regional Trial Court 17 over which the particular branch
concerned shall exercise its
authority. 18 From this, it is theorized that "only the branch of a Regional Trial Court which has jurisdiction over the place to
be searched could grant an application for and issue a warrant to search that place." Support for such position is sought to
be drawn from issuances of this Court, that is, Circular No. 13 issued on October 1, 1985, as amended by Circular No. 19
on August 4, 1987.
We reject that proposition. Firstly, it is evident that both circulars were not intended to be of general application to all
instances involving search warrants and in all courts as would be the case if they had been adopted as part of the Rules
of Court. These circulars were issued by the Court to meet a particular exigency, that is, as emergency guidelines on
applications for search warrants filed only in the courts of Metropolitan Manila and other courts with multiple salas
and only with respect to violations of the Anti-Subversion Act, crimes against public order under the Revised Penal Code,
illegal possession of firearms and/or ammunitions, and violations of the Dangerous Drugs Act. In other words, the
aforesaid theory on the court's jurisdiction to issue search warrants would not apply tosingle-sala courts and other crimes.
Accordingly, the rule sought by petitioners to be adopted by the Court would actually result in a bifurcated procedure
which would be vulnerable to legal and constitutional objections.
For that matter, neither can we subscribe to petitioners' contention that Administrative Order No. 3 of this Court,
supposedly "defining the limits of the territorial jurisdiction of the Regional Trial Courts," was the source of thesubject
matter jurisdiction of, as distinguished from the exercise of jurisdiction by, the courts. As earlier observed, this
administrative order was issued pursuant to the provisions of Section 18 of Batas Pambansa Blg. 129, the pertinent
portion of which states:
Sec. 18. Authority to define territory appurtenant to each branch. The Supreme Court shall define the
territory over which a branch of the Regional Trial Court shall exercise its authority. The territory thus
defined shall be deemed to be the territorial area of the branch concerned for purposes of determining the
venue of all writs, proceedings or actions, whether civil or criminal, . . . . (Emphasis ours.)
Jurisdiction is conferred by substantive law, in this case Batas Pambansa Blg. 129, not by a procedural law and, much
less, by an administrative order or circular. The jurisdiction conferred by said Act on regional trial courts and their judges is
basically regional in scope. Thus, Section 17 thereof provides that "(e)very Regional Trial Judge shall be appointed to
a region which shall be his permanent station," and he "may be assigned by the Supreme Court to any branch or city or
municipality within the same region as public interest may require, and such assignment shall not be deemed an
assignment to another station . . ." which, otherwise, would necessitate a new appointment for the judge.
In fine, Administrative Order No. 3 and, in like manner, Circulars Nos. 13 and 19, did not per se confer jurisdiction on the
covered regional trial court or its branches, such that non-observance thereof would nullify their judicial acts. The
administrative order merely defines the limits of the administrative area within which a branch of the court may exercise its
authority pursuant to the jurisdiction conferred by Batas Pambansa Blg. 129. The circulars only allocated to the three
executive judges the administrative areas for which they may respectively issue search warrants under the special
circumstance contemplated therein, but likewise pursuant to the jurisdiction vested in them by Batas Pambansa Blg, 129.
Secondly, and more importantly, we definitely cannot accept the conclusion that the grant of power to the courts
mentioned therein, to entertain and issue search warrants where the place to be searched is within their territorial
jurisdiction, was intended to exclude other courts from exercising the same power. It will readily be noted that Circular No.
19 was basically intended to provide prompt action on applications for search warrants. Its predecessor, Administrative
Circular No. 13, had a number of requirements, principally a raffle of the applications for search warrants, if they had been
filed with the executive judge, among the judges within his administrative area. Circular No. 19 eliminated, by amendment,
that required raffle and ordered instead that such applications should immediately be "taken cognizance of and acted
upon by the Executive Judges of the Regional Trial Court, Metropolitan Trial Court, and Municipal Trial Court under whose
jurisdiction the place to be searched is located," or by their substitutes enumerated therein.
Evidently, that particular provision of Circular No. 19 was never intended to confer exclusive jurisdiction on said executive
judges. In view of the fact, however, that they were themselves directed to personally act on the applications, instead of
farming out the same among the other judges as was the previous practice, it was but necessary and practical to require
them to so act only on applications involving search of places located within their respective territorial jurisdictions. The
phrase above quoted was, therefore, in the nature of an allocation in the assignment of applications among them, in
recognition of human capabilities and limitations, and not a mandate for the exclusion of all other courts. In truth,
Administrative Circular No. 13 even specifically envisaged and anticipated the non-exclusionary nature of that provision,
thus:
4. If, in the implementation of the search warrant properties are seized thereunder and the corresponding
case is filed in court, said case shall be distributed conformably with Circular No. 7 dated September 23,
1974, of this Court, and thereupon tried and decided by the judge to whom it has been assigned, and not
necessarily by the judge who issued the search warrant. (Emphasis supplied.)
It is, therefore, incorrect to say that only the court which has jurisdiction over the criminal case can issue the search
warrant, as would be the consequence of petitioners' position that only the branch of the court with jurisdiction over
the place to be searched can issue a warrant to search the same. It may be conceded, as a matter of policy, that where a
criminal case is pending, the court wherein it was filed, or the assigned branch thereof, has primary jurisdiction to issue
the search warrant; and where no such criminal case has yet been filed, that the executive judges or their lawful
substitutes in the areas and for the offenses contemplated in Circular No. 19 shall have primary jurisdiction.
This should not, however, mean that a court whose territorial jurisdiction does not embrace the place to be searched
cannot issue a search warrant therefor, where the obtention of that search warrant is necessitated and justified by
compelling considerations of urgency, subject, time and place. Conversely, neither should a search warrant duly issued by
a court which has jurisdiction over a pending criminal case, or one issued by an executive judge or his lawful substitute
under the situations provided for by Circular No. 19, be denied enforcement or nullified just because it was implemented
outside the court's territorial jurisdiction.
This brings us, accordingly, to the second issue on the permissible jurisdictional range of enforcement of search warrants.
II
As stated in limine, the affiliated issue raised in this case is whether a branch of a regional trial court has the authority to
issue a warrant for the search of a place outside its territorial jurisdiction. Petitioners insistently answer the query in the
negative. We hold otherwise.
1. We repeat what we have earlier stressed: No law or rule imposes such a limitation on search warrants, in the same
manner that no such restriction is provided for warrants of arrest. Parenthetically, in certain states within the American
jurisdiction, there were limitations of the time wherein a warrant of arrest could be enforced. In our jurisdiction, no period is
provided for the enforceability of warrants of arrest, and although within ten days from the delivery of the warrant of arrest
for execution a return thereon must be made to the issuing judge, 19 said warrant does not become functus officio but is
enforceable indefinitely until the same is enforced or recalled. On the other hand, the lifetime of a search warrant has
been expressly set in our Rules at ten days 20 but there is no provision as to the extent of the territory wherein it may be
enforced, provided it is implemented on and within the premises specifically described therein which may or may not be
within the territorial jurisdiction of the issuing court.
We make the foregoing comparative advertence to emphasize the fact that when the law or rules would provide
conditions, qualifications or restrictions, they so state. Absent specific mention thereof, and the same not being inferable
by necessary implication from the statutory provisions which are presumed to be complete and expressive of the
intendment of the framers, a contrary interpretation on whatever pretext should not be countenanced.
A bit of legal history on this contestation will be helpful. The jurisdictional rule heretofore was that writs and processes of
the so-called inferior courts could be enforced outside the province only with the approval of the former court of first
instance. 21 Under the Judiciary Reorganization Act, the enforcement of such writs and processes no longer needs the
approval of the regional trial court. 22 On the other hand, while, formerly, writs and processes of the then courts of first
instance were enforceable throughout the Philippines, 23 under the Interim or Transitional Rules and Guidelines,
certain specified writs issued by a regional trial court are now enforceable only within its judicial region. In the interest of
clarity and contrast, it is necessary that said provision be set out in full:
(a) Writs of certiorari, prohibition mandamus, quo warranto, habeas corpus and injunction issued by a
regional trial court may be enforced in any part of the region.
(b) All other processes, whether issued by a regional trial court or a metropolitan trial court, municipal trial
court or municipal circuit trial court may be served anywhere in the Philippines, and, in the last three
cases, without a certification by the judge of the regional trial court. (Emphasis ours.)
We feel that the foregoing provision is too clear to be further belabored or enmeshed in unwarranted polemics. The rule
enumerates the writs and processes which, even if issued by a regional trial court, are enforceable only within its judicial
region. In contrast, it unqualifiedly provides that all other writs and processes, regardless of which court issued the same,
shall be enforceable anywhere in the Philippines. As earlier demonstrated, a search warrant is but a judicial process, not a
criminal action. No legal provision, statutory or reglementary, expressly or impliedly provides a jurisdictional or territorial
limit on its area of enforceability. On the contrary, the above-quoted provision of the interim Rules expressly authorizes its
enforcement anywhere in the country, since it is not among the processes specified in paragraph (a) and there is no
distinction or exception made regarding the processes contemplated in
paragraph (b).
2. This is but a necessary and inevitable consequence of the nature and purpose of a search warrant. The Court cannot
be blind to the fact that it is extremely difficult, as it undeniably is, to detect or elicit information regarding the existence
and location of illegally possessed or prohibited articles. The Court is accordingly convinced that it should not make the
requisites for the apprehension of the culprits and the confiscation of such illicit items, once detected, more onerous if not
impossible by imposing further niceties of procedure or substantive rules of jurisdiction through decisional dicta. For that
matter, we are unaware of any instance wherein a search warrant was struck down on objections based on territorial
jurisdiction. In the landmark case of Stonehill, et al. vs. Diokno,et al., 24 the searches in the corporate offices in Manila and
the residences in Makati of therein petitioners were conducted pursuant to search warrants issued by the Quezon City
and Pasig branches of the Court of First Instance of Rizal and by the Municipal Courts of Manila and Quezon City, 25 but
the same were never challenged on jurisdictional grounds although they were subsequently nullified for being general
warrants.
3. A clarion call supposedly of libertarian import is further sounded by petitioners, dubiously invoking the constitutional
proscription against illegal searches and seizures. We do not believe that the enforcement of a search warrant issued by a
court outside the territorial jurisdiction wherein the place to be searched is located would create a constitutional question.
Nor are we swayed by the professed apprehension that the law enforcement authorities may resort to what could be a
permutation of forum shopping, by filing an application for the warrant with a "friendly" court. It need merely be recalled
that a search warrant is only a process, not an action. Furthermore, the constitutional mandate is translated into
specifically enumerated safeguards in Rule 126 of the 1985 Rules on Criminal Procedure for the issuance of a search
warrant, 26 and all these have to be observed regardless of whatever court in whichever region is importuned for or
actually issues a search warrant. Said requirements, together with the ten-day lifetime of the warrant 27 would discourage
resort to a court in another judicial region, not only because of the distance but also the contingencies of travel and the
danger involved, unless there are really compelling reasons for the authorities to do so. Besides, it does seem odd that
such constitutional protests have not been made against warrants of arrest which are enforceable indefinitely and
anywhere although they involve, not only property and privacy, but persons and liberty.
On the other hand, it is a matter of judicial knowledge that the authorities have to contend now and then with local and
national criminal syndicates of considerable power and influence, political or financial in nature, and so pervasive as to
render foolhardy any attempt to obtain a search warrant in the very locale under their sphere of control. Nor should we
overlook the fact that to do so will necessitate the transportation of applicant's witnesses to and their examination in said
places, with the attendant risk, danger and expense. Also, a further well-founded precaution, obviously born of experience
and verifiable data, is articulated by the court a quo, as quoted by respondent court:
This court is of the further belief that the possible leakage of information which is of utmost importance in
the issuance of a search warrant is secured (against) where the issuing magistrate within the region does
not hold court sessions in the city or municipality, within the region, where the place to be searched is
located. 28
The foregoing situations may also have obtained and were taken into account in the foreign judicial pronouncement that,
in the absence of statutory restrictions, a justice of the peace in one district of the county may issue a search warrant to
be served in another district of the county and made returnable before the justice of still another district or another court
having jurisdiction to deal with the matters involved. 29 In the present state of our law on the matter, we find no such
statutory restrictions both with respect to the court which can issue the search warrant and the enforcement thereof
anywhere in the Philippines.
III
Concern is expressed over possible conflicts of jurisdiction (or, more accurately, in the exercise of jurisdiction) where the
criminal case is pending in one court and the search warrant is issued by another court for the seizure of personal
property intended to be used as evidence in said criminal case. This arrangement is not unknown or without precedent in
our jurisdiction. In fact, as hereinbefore noted, this very situation was anticipated in Circular No. 13 of this Court under the
limited scenario contemplated therein.
Nonetheless, to put such presentiments to rest, we lay down the following policy guidelines:
1. The court wherein the criminal case is pending shall have primary jurisdiction to issue search warrants necessitated by
and for purposes of said case. An application for a search warrant may be filed with another court only under extreme and
compelling circumstances that the applicant must prove to the satisfaction of the latter court which may or may not give
due course to the application depending on the validity of the justification offered for not filing the same in the court with
primary jurisdiction thereover.
2. When the latter court issues the search warrant, a motion to quash the same may be filed in and shall be resolved by
said court, without prejudice to any proper recourse to the appropriate higher court by the party aggrieved by the
resolution of the issuing court. All grounds and objections then available, existent or known shall be raised in the original
or subsequent proceedings for the quashal of the warrant, otherwise they shall be deemed waived.
3. Where no motion to quash the search warrant was filed in or resolved by the issuing court, the interested party may
move in the court where the criminal case is pending for the suppression as evidence of the personal property seized
under the warrant if the same is offered therein for said purpose. Since two separate courts with different participations
are involved in this situation, a motion to quash a search warrant and a motion to suppress evidence are alternative and
not cumulative remedies. In order to prevent forum shopping, a motion to quash shall consequently be governed by the
omnibus motion rule, provided, however, that objections not available, existent or known during the proceedings for the
quashal of the warrant may be raised in the hearing of the motion to suppress. The resolution of the court on the motion to
suppress shall likewise be subject to any proper remedy in the appropriate higher court.
4. Where the court which issued the search warrant denies the motion to quash the same and is not otherwise prevented
from further proceeding thereon, all personal property seized under the warrant shall forthwith be transmitted by it to the
court wherein the criminal case is pending, with the necessary safeguards and documentation therefor.
5. These guidelines shall likewise be observed where the same criminal offense is charged in different informations or
complaints and filed in two or more courts with concurrent original jurisdiction over the criminal action. Where the issue of
which court will try the case shall have been resolved, such court shall be considered as vested with primary jurisdiction to
act on applications for search warrants incident to the criminal case.
WHEREFORE, on the foregoing premises, the instant petition is DENIED and the assailed judgment of respondent Court
of Appeals in CA-G.R. SP No. 23533 is hereby AFFIRMED.
SO ORDERED.