327 Cases Penned by Associate Justice Amy Lazaro-Javier: 2025 Bar Examination
Can the Power Sector Assets and Liabilities Management
Corporation (PSALM) proceed with the engagement of private legal advisors
without the prior written concurrence of the Commission on Audit (COA), despite
a delay of over three years in COA's response, and hold PSALM officials
personally liable for payments made without COA approval?
Power Sector Assets and Liabilities Management Corporation vs. Commission on Audit, G.R. No. 247924, November 16, 2021
Facts of the Case:
In 2011, PSALM engaged two legal advisors—Mr. John T. K.
Yeap (international legal advisor) and Atty. Michael B. Tantoco (Philippine
legal advisor)—to assist in the privatization of the National Power
Corporation’s (NPC) generation assets and Independent Power Producer (IPP)
contracts. The advisors' contracts were subject to the written concurrence of
both the Office of the Government Corporate Counsel (OGCC) and COA, as required
under COA Circular Nos. 86-255 and 95-011.
PSALM urgently requested COA’s concurrence, specifying May
30, 2011, as the deadline for a response, which was crucial for the timely
execution of its privatization projects. Although the OGCC promptly approved
the contracts, COA remained silent. After waiting an additional 91 days without
receiving COA’s concurrence, PSALM decided to proceed with the legal advisors'
contracts on August 29, 2011, due to the need to meet the statutory
requirements under the Electric Power Industry Reform Act (EPIRA) of 2001.
Three years later, on November 6, 2014, COA finally
responded by denying PSALM's request for concurrence, citing PSALM's failure to
obtain prior approval. COA disallowed payments made to the legal advisors and
held the PSALM officials personally liable, stating that the engagement
violated COA Circular Nos. 86-255 and 95-011. PSALM filed a motion for
reconsideration, arguing that the delayed engagement was necessary to avoid
further setbacks in its privatization projects and that the legal services
provided were merely advisory in nature, not involving court appearances.
Despite these arguments, COA denied PSALM’s reconsideration in its 2019 ruling.
PSALM elevated the matter to the Supreme Court, contending
that COA’s three-year delay in issuing its concurrence effectively amounted to
grave abuse of discretion and that the hiring of the advisors was indispensable
to comply with the EPIRA mandate.
Primary Legal Issue:
Was the engagement of private legal advisors by PSALM
without COA’s prior written concurrence valid, given COA’s inaction for over
three years, and should PSALM officers be held personally liable for the
payments made?
Supreme Court Decision:
The Supreme Court ruled in favor of PSALM, finding that COA
committed grave abuse of discretion in delaying its decision for more than
three years. The Court emphasized that PSALM had acted in good faith, waiting
for a reasonable period and ultimately making a judgment call to avoid further
delays in its privatization projects. The Supreme Court ruled that COA’s denial
of concurrence based on technicalities, without considering the merits of the
necessity and urgency of the engagement, was unjustified.
The Court further held that the PSALM officers who
authorized the payment for the legal services should not be held personally
liable, as they acted without malice and solely in pursuit of fulfilling
PSALM’s statutory mandate under EPIRA. The legal services rendered were crucial
in achieving the privatization goals set by law, and the COA’s delayed response
was deemed unreasonable.
Dispositive Portion:
The petition was granted. COA’s Decision No. 2017-215 and
Resolution-Decision No. 2019-004 were nullified. The Supreme Court directed COA
to allow the payment of the legal advisors, Mr. Yeap and Atty. Tantoco, for
services rendered under their respective contracts.
Should government agencies be given more autonomy in hiring
specialized legal advisors when faced with critical deadlines, even if it means
bypassing COA’s concurrence? How can government auditing processes balance
oversight with efficiency?
Important Doctrines:
- Pre-Audit
Requirement (COA Circular Nos. 86-255 and 95-011): Even when legal
services are purely advisory, COA's prior concurrence is mandatory, unless
exempted under extraordinary circumstances.
- Grave
Abuse of Discretion (Article III, Section 16, 1987 Constitution): The
right to a speedy disposition of cases applies to all judicial,
quasi-judicial, and administrative bodies. COA’s inordinate delay of over
three years constituted a violation of this constitutional right.
- Good
Faith and Public Officials' Liability: Public officers are not liable
for damages when acting in good faith in the performance of their duties,
especially when their decisions aim to fulfill statutory mandates in the
absence of malice.
This case is classified under Remedial Law due to its
focus on procedural matters and the remedies available to PSALM against COA's
actions.