G.R. No.

185740               July 23, 2013

THE PROVINCIAL GOVERNMENT OF CAMARINES NORTE, represented by GOVERNOR JESUS O. TYPOCO,

DECISION

BRION, J.:

We resolve the Provincial Government of Camarines Norte's (petitioner) petition for review on certiorari1 assailing the
Decision2 dated June 25, 2008 and the Resolution3 dated December 2, 2008 of the Court of Appeals (CA) in CA-G.R.
SP No. 97425, reinstating respondent Beatriz O. Gonzales as the Province of Camarines Norte’s provincial
administrator, or to an equivalent position.

Factual Antecedents

Gonzales was appointed as the provincial administrator of the Province of Camarines Norte by then Governor Roy A.
Padilla, Jr. on April 1, 1991. Her appointment was on a permanent capacity. On March 8, 1999, Governor Jess B.
Pimentel sent Gonzales a memorandum directing her to explain in writing why no administrative charges should be
filed against her for gross insubordination/gross discourtesy in the course of official duties, and conduct grossly
prejudicial to the best interest of the service; this was later on captioned as Administrative Case No. 001. After
Gonzales submitted her comment, an Ad Hoc Investigation Committee found her guilty of the charges against her,
and recommended to Governor Pimentel that she be held administratively liable.4 On September 30, 1999, Governor
Pimentel adopted the Ad Hoc Investigation Committee’s recommendation and dismissed Gonzales.5

Proceedings before the Civil Service Commission

Gonzales appealed Governor Pimentel’s decision to the Civil Service Commission (CSC). The CSC issued Resolution
No. 0014186 modifying Governor Pimentel’s decision, finding Gonzales guilty of insubordination and suspending her
for six months. This decision was appealed by Governor Pimentel, which the CSC denied in its Resolution No.
001952.7

Gonzales then filed a motion for execution and clarification of Resolution No. 001418, in which she claimed that she
had already served her six-month suspension and asked to be reinstated. The CSC issued Resolution No.
002245,8which directed Gonzales’ reinstatement.

Governor Pimentel reinstated Gonzales as provincial administrator on October 12, 2000, but terminated her services
the next day for lack of confidence. He then wrote a letter9 to the CSC reporting his compliance with its order, and
Gonzales’ subsequent dismissal as a confidential employee. In his letter, Governor Pimentel cited Resolution No.
0001158,10 where the CSC ruled that the provincial administrator position is highly confidential and is coterminous in
nature.

The CSC responded through Resolution No. 030008,11 which again directed Gonzales’ reinstatement as provincial
administrator. It clarified that while the Local Government Code of 1991 (Republic Act No. RA 7160) made the
provincial administrator position coterminous and highly confidential in nature, this conversion cannot operate to
prejudice officials who were already issued permanent appointments as administrators prior to the new law’s
effectivity. According to the CSC, Gonzales has acquired a vested right to her permanent appointment as provincial
administrator and is entitled to continue holding this office despite its subsequent classification as a coterminous
position. The conversion of the provincial administrator position from a career to a non-career service should not
jeopardize Gonzales’ security of tenure guaranteed to her by the Constitution. As a permanent appointee, Gonzales
may only be removed for cause, after due notice and hearing. Loss of trust and confidence is not among the grounds
for a permanent appointee’s dismissal or discipline under existing laws.

In a letter12 dated February 17, 2005, Gonzales wrote the CSC alleging that Governor Jesus O. Typoco, Jr.,
Camarines Norte’s incumbent governor, refused to reinstate her. The CSC responded with Resolution No.
061988,13 which ordered Gonzales’ reinstatement to the provincial administrator position, or to an equivalent
position.Thus, the petitioner, through Governor Typoco, filed a petition for review before the CA, seeking to nullify the
CSC’s Resolution No. 030008 and Resolution No. 061988.

The Appellate Court’s Ruling

Citing Aquino v. Civil Service Commission,15 the CA emphasized that an appointee acquires a legal right to his
position once he assumes a position in the civil service under a completed appointment. This legal right is protected
both by statute and the Constitution, and he cannot be removed from office without cause and previous notice and
hearing. Appointees cannot be removed at the mere will of those vested with the power of removal, or without any
cause.

The CA then enumerated the list of valid causes for a public officer’s removal under Section 46,16 Book V, Title I,
Subtitle A of the Revised Administrative Code (Administrative Code), and noted that lack of confidence was not in the
list. Thus, the CA concluded that Gonzales’ dismissal on the ground of loss of confidence violated her security of
tenure, and that she has the right to be reinstated with payment of backwages.

The CA further held that Gonzales’ dismissal was illegal because it was done without due process. The proceedings
under Administrative Case No. 001 cannot be the basis for complying with the requirements of due process because
they are separate and distinct from the proceedings in the present controversy. Thus, Gonzales was illegally
terminated when she was dismissed for lack of confidence, without any hearing, the day after she was reinstated.

Lastly, the CA noted that Resolution No. 002245, which modified Governor Pimentel’s decision, has long been final
and executory. The petitioner did not file any petition for reconsideration against Resolution No. 002245, and hence, it
is no longer alterable.

The petitioner sought a reconsideration17 of the CA’s Decision, which the CA denied in a Resolution18 dated December
2, 2008.

The Present Petition

In its present petition for review on certiorari, the petitioner argues that the provincial administrator position has been
converted into a highly confidential, coterminous position by RA 7160. Hence, Gonzales no longer enjoyed security of
tenure to the position she held prior to RA 7160’s enactment.

In her Comment19 and Memorandum,20 Gonzales maintained that the provincial administrator remained a career
service position. Section 721 of Presidential Decree No. 807, which was one of the bases of the Court in Laurel V v.
Civil Service Commission22 to declare the provincial administrator as a career service position, is a verbatim copy of
Section 7,23 Chapter 2 of the Administrative Code. This classification, established by law and jurisprudence, cannot be
altered by the mere implementing rules and regulations of RA 7160. And assuming arguendo that the provincial
administrator position has indeed become a primarily confidential position, this reclassification should not apply
retroactively to Gonzales’ appointment on a permanent capacity prior to RA 7160’s effectivity.

Issues

The parties’ arguments, properly joined, present to us the following issues:

1) Whether Congress has re-classified the provincial administrator position from a career service to a primarily
confidential, non-career service position; and

2) Whether Gonzales has security of tenure over her position as provincial administrator of the Province of
Camarines Norte.

The Court’s Ruling

We find the petition meritorious.

Congress has reclassified the provincial administrator position as a primarily confidential, non-career position

We support the CSC’s conclusion that the provincial administrator position has been classified into a primarily
confidential, non-career position when Congress, through RA 7160, made substantial changes to it. First, prior to RA
7160, Batas Pambansa Blg. 337, the old Local Government Code (LGC), did not include a provincial administrator
position among the listing of mandatory provincial officials,24 but empowered the Sangguniang Panlalawigan to create
such other offices as might then be necessary to carry out the purposes of the provincial government.25 RA 7160
made the position mandatory for every province.26 Thus, the creation of the provincial administrator position under the
old LGC used to be a prerogative of the Sangguniang Panlalawigan.
Second, in introducing the mandatory provincial administrator position, RA 7160 also amended the qualifications for
the provincial administrator position. While Section 48027 of RA 7160 retained the requirement of civil service eligibility
for a provincial administrator, together with the educational requirements, it shortened the six-year work experience
requirement to five years.28 It also mandated the additional requirements of residence in the local government
concerned, and imposed a good moral character requirement.

Third, RA 7160 made the provincial administrator position coterminous with its appointing authority, reclassifying it as
a non-career service position that is primarily confidential.

Before RA 7160 took effect, Laurel classified the provincial administrator position as an open career position which
required qualification in an appropriate examination prior to appointment. Laurel placed the provincial administrator
position under the second major level of positions in the career service under Section 7 of Presidential Decree No.
807. This provision reads:

Section 7. Classes of Positions in the Career Service.

(a) Classes of positions in the career service appointment to which requires examinations shall be grouped into three
major levels as follows:

xxxx

2. The second level shall include professional, technical, and scientific positions which involve professional, technical,
or scientific work in a non-supervisory or supervisory capacity requiring at least four years of college work up to
Division Chief level.

Section 480 of RA 7160 made the provincial administrator’s functions closely related to the prevailing provincial
administration by identifying the incumbent with the provincial governor to ensure the alignment of the governor’s
direction for the province with what the provincial administrator would implement. In contrast with the general direction
provided by the provincial governor under the Manual of Position Descriptions cited in Laurel, Section 480(b) of RA
7160 now mandates constant interaction between the provincial administrator and the provincial governor, to wit:

(b) The administrator shall take charge of the office of the administrator and shall:

(1) Develop plans and strategies and upon approval thereof by the governor or mayor, as the case may be,
implement the same particularly those which have to do with the management and administration-related
programs and projects which the governor or mayor is empowered to implement and which the sanggunian is
empowered to provide for under this Code;

(2) In addition to the foregoing duties and functions, the administrator shall:

(i) Assist in the coordination of the work of all the officials of the local government unit, under the supervision,
direction, and control of the governor or mayor, and for this purpose, he may convene the chiefs of offices and other
officials of the local government unit;

xxxx

(4) Recommend to the sanggunian and advise the governor and mayor, as the case may be, on all other matters
relative to the management and administration of the local government unit. [emphases and italics ours]

As the CSC correctly noted in Resolution No. 0001158,29 the administrator position demands a close intimate
relationship with the office of the governor (its appointing authority) to effectively develop, implement and administer
the different programs of the province. The administrator’s functions are to recommend to the Sanggunian and to
advise the governor on all matters regarding the management and administration of the province, thus requiring that
its occupant enjoy the governor’s full trust and confidence.

To emphasize the close relations that the provincial administrators’ functions have with the office of the governor, RA
7160 even made the provincial administrator position coterminous with its appointing authority.30 This provision, along
with the interrelations between the provincial administrator and governor under Section 480, renders clear the intent of
Congress to make the provincial administrator position primarily confidential under the non-career service category of
the civil service.

Congress’ reclassification of the provincial administrator position in RA 7160 is a valid exercise of legislative power
that does not violate Gonzales’ security of tenure
Having established that Congress has changed the nature of the provincial administrator position to a primarily
confidential employee, the next question to address would be its impact on Gonzales’ security of tenure. According to
the petitioner, Gonzales lost her security of tenure when the provincial administrator position became a primarily
confidential position. Gonzales, on the other hand, retorted that the conversion of the position should not be
retroactively applied to her, as she is a permanent appointee. Both the CA and the CSC ruled in favor of the latter, and
gave premium to Gonzales’ original permanent appointment under the old LGC. They posit that Gonzales acquired a
vested legal right over her position from the moment she assumed her duties as provincial administrator. Thus, she
cannot be removed from office except for cause and after due hearing; otherwise such removal would amount to a
violation of her security of tenure.

The arguments presented by the parties and ruled upon by the CA reflect a conceptual entanglement between the
nature of the position and an employee’s right to hold a position. These two concepts are different. The nature of a
position may change by law according to the dictates of Congress. The right to hold a position, on the other hand, is a
right that enjoys constitutional and statutory guarantee, but may itself change according to the nature of the position.

Congress has the power and prerogative to introduce substantial changes in the provincial administrator position and
to reclassify it as a primarily confidential, non-career service position. Flowing from the legislative power to create
public offices is the power to abolish and modify them to meet the demands of society;31 Congress can change the
qualifications for and shorten the term of existing statutory offices. When done in good faith, these acts would not
violate a public officer’s security of tenure, even if they result in his removal from office or the shortening of his
term.32 Modifications in public office, such as changes in qualifications or shortening of its tenure, are made in good
faith so long as they are aimed at the office and not at the incumbent.33

In Salcedo and Ignacio v. Carpio and Carreon,34 for instance, Congress enacted a law modifying the offices in the
Board of Dental Examiners. The new law, RA 546, raised the qualifications for the board members, and provided for a
different appointment process. Dr. Alfonso C. Salcedo and Dr. Pascual Ignacio, who were incumbent board members
at the time RA 546 took effect, filed a special civil action for quo warranto against their replacements, arguing that their
term of office under the old law had not yet expired, and neither had they abandoned or been removed from office for
cause. We dismissed their petition, and held that Congress may, by law, terminate the term of a public office at any
time and even while it is occupied by the incumbent. Thus, whether Dr. Salcedo and Dr. Ignacio were removed for
cause or had abandoned their office is immaterial.

More recently, in Dimayuga v. Benedicto II,35 we upheld the removal of Chona M. Dimayuga, a permanent appointee
to the Executive Director II position, which was not part of the career executive service at the time of her appointment.
During her incumbency, the CSC, by authority granted under Presidential Decree No. 1, classified the Executive
Director II position to be within the career executive service. Since Dimayuga was not a career executive service
officer, her initially permanent appointment to the position became temporary; thus, she could be removed from office
at any time.

In the current case, Congress, through RA 7160, did not abolish the provincial administrator position but significantly
modified many of its aspects. It is now a primarily confidential position under the non-career service tranche of the civil
service. This change could not have been aimed at prejudicing Gonzales, as she was not the only provincial
administrator incumbent at the time RA 7160 was enacted. Rather, this change was part of the reform measures that
RA 7160 introduced to further empower local governments and decentralize the delivery of public service. Section 3(b)
of RA 7160 provides as one of its operative principles that:

(b) There shall be established in every local government unit an accountable, efficient, and dynamic organizational
structure and operating mechanism that will meet the priority needs and service requirements of its communities.

Thus, Gonzales’ permanent appointment as provincial administrator prior to the enactment of RA 7160 is immaterial to
her removal as provincial administrator. For purposes of determining whether Gonzales’ termination violated her right
to security of tenure, the nature of the position she occupied at the time of her removal should be considered, and not
merely the nature of her appointment at the time she entered government service.

In echoing the CSC and the CA’s conclusion, the dissenting opinion posits the view that security of tenure protects the
permanent appointment of a public officer, despite subsequent changes in the nature of his position.

Citing Gabriel v. Domingo,36 the dissenting opinion quotes our categorical declaration that "a permanent employee
remains a permanent employee unless he is validly terminated," and from there attempts to draw an analogy between
Gabriel and the case at hand.

The very first sentence of Gabriel spells out its vast difference from the present case. The sole and main issue in
Gabriel is whether backwages and other monetary benefits could be awarded to an illegally dismissed government
employee, who was later ordered reinstated. From this sentence alone can be discerned that the issues involved
related to the consequences of illegal dismissal rather than to the dismissal itself. Nowhere in Gabrielwas there any
mention of a change in the nature of the position held by the public officer involved.

Further, key factual differences make Gabriel inapplicable to the present case, even if only by analogy: first, the public
officer in Gabriel received a Memorandum stating that he would be appointed as Transportation District Supervisor III
under their office reorganization. Second, the Court in Gabriel clearly pointed out that the reason for his eventual
appointment as a casual employee, which led to his termination from service, was due to a pending protest he filed
before the CSC – indicating that there was no ground for him to not receive the appointment earlier promised. In
contrast, the issue of Gonzales is whether the appointing authority’s lack of trust and confidence in the appointee was
sufficient cause for the termination of employment of a primarily confidential employee. And third, there was a change
in the position held by the public officer in Gabriel. He was a permanent employee who was extended a different
appointment, which was casual in nature, because of a protest that he earlier filed. In contrast, the current case
involves a public officer who held the same position whose nature changed because of the passage of RA 7160.

The dissent also quotes the penultimate paragraph of Civil Service Commission v. Javier37 to support its contention
that permanent appointees could expect protection for their tenure and appointments in the event that the Court
determines that the position is actually confidential in nature:

The Court is aware that this decision has repercussions on the tenure of other corporate secretaries in various
GOCCs. The officers likely assumed their positions on permanent career status, expecting protection for their tenure
and appointments, but are now re-classified as primarily confidential appointees. Such concern is unfounded,
however, since the statutes themselves do not classify the position of corporate secretary as permanent and career in
nature. Moreover, there is no absolute guarantee that it will not be classified as confidential when a dispute arises. As
earlier stated, the Court, by legal tradition, has the power to make a final determination as to which positions in
government are primarily confidential or otherwise. In the light of the instant controversy, the Court's view is that the
greater public interest is served if the position of a corporate secretary is classified as primarily confidential in nature.38

The quoted portion, however, even bolsters our theory. Read together with its succeeding paragraph, the quoted
portion in Civil Service Commission v. Javier39 actually stands for the proposition that other corporate secretaries in
government-owned and –controlled corporations cannot expect protection for their tenure and appointments upon the
reclassification of their position to a primarily confidential position. There, the Court emphasized that these officers
cannot rely on the statutes providing for their permanent appointments, if and when the Court determines these to be
primarily confidential. In the succeeding paragraph after the portion quoted by the dissent, we even pointed out that
there is no vested right to public office, nor is public service a property right. Thus:

Moreover, it is a basic tenet in the country's constitutional system that "public office is a public trust," and that there is
no vested right in public office, nor an absolute right to hold office. No proprietary title attaches to a public office, as
public service is not a property right. Excepting constitutional offices which provide for special immunity as regards
salary and tenure, no one can be said to have any vested right in an office. The rule is that offices in government,
except those created by the constitution, may be abolished, altered, or created anytime by statute. And any issues on
the classification for a position in government may be brought to and determined by the courts.40(emphases and italics
ours)

Executive Order No. 503 does not grant Gonzales security of tenure in the provincial administrator position on a
permanent capacity

In extending security of tenure to Gonzales’ permanent appointment as provincial administrator, the dissenting opinion
cites as authority Executive Order No. (EO) 503 which provided certain safeguards against the termination of
government employees affected by the implementation of RA 7160. According to the dissenting opinion, EO 503 is an
obvious indication of the executive department’s intent to protect and uphold both the national government and the
local government employees’ security of tenure. It cites Section 2(a), paragraph 8 (providing for the tenure of an
administrator) to prove its point:

8. Incumbents of positions, namely administrator, legal officer, and information officer declared by the Code as
coterminous, who hold permanent appointments, shall continue to enjoy their permanent status until they vacate their
positions.

At first glance, EO 503 does seem to extend the provincial administrators’ security of tenure in their permanent
appointments even beyond the effectivity of RA 7160. EO 503, however, does not apply to employees of the local
government affected by RA 7160’s enactment. The title of EO 503 clearly provides for its scope of application, to wit:

Executive Order No. 503. Providing for the Rules and Regulations Implementing the Transfer of Personnel and
Assets, Liabilities and Records of National Government Agencies whose Functions are to be Devolved to the Local
Government Units and for other Related Purposes. [underscore, italics and emphases ours]
A reading of EO 503’s whereas clauses confirms that it applies only to national government employees whose
functions are to be devolved to local governments:

WHEREAS, Republic Act No. 7160, otherwise known as the Local Government Code of 1991, hereinafter referred to
as the Code, transfers the responsibility for the delivery of basic services and facilities from the national government
agencies (NGAs) concerned to the local government units (LGUs);

WHEREAS, the Code stipulated that the transfer of basic services and facilities shall be accompanied by the transfer
of the national personnel concerned and assets to ensure continuity in the delivery of such services and facilities;

WHEREAS, responsive rules and regulations are needed to affect the required transfer of national personnel
concerned and assets to the LGUs. [underscores, italics and emphases ours]

Thus, paragraph 8, section 2(a) of EO 503 cannot apply to Gonzales, a provincial administrator. As explained earlier,
the existence of the provincial administrator position was a prerogative of the Sanggunian Panlalawigan, and was not
even a mandatory public office under the old LGC. It is clearly not a national government position whose functions are
to be devolved to the local governments.

The dissenting opinion, on the other hand, argues that EO 503 does not apply to national government employees
only. According to the dissent, the phrase "and for related purposes" in EO 503’s title could encompass personnel not
necessarily employed by national government agencies but by local government units such as the administrator, the
legal officer and the information officer, as enumerated in Section 2(a), paragraph 8 thereof. This provision, according
to the dissent, fills the crucial gap left by RA 7160 which did not provide whether the term of an incumbent provincial
administrator would automatically become coterminous with that of the appointing authority upon RA 7160’s effectivity.

This kind of construction effectively adds to EO 503’s object matters that it did not explicitly provide for. The phrase
"and for other related purposes" can only add to EO 503 matters related to the devolution of personnel, basic services
and facilities to local government units. The impact of the change in a local government position’s nature is clearly
different from the implementation of devolution and its ancillary effects: the former involves a change in a local
government position’s functions and concept of tenure, while the latter involves (among other things) the transfer of
national government employees to local government units. This difference is highlighted by the fact that EO 503, as
reflected by its whereas clauses, was issued to implement Section 17 of RA 7160. In contrast, the change in the
nature of the provincial administrator position may be gleaned from Section 480 of RA 7160. Hence, by no stretch of
reasonable construction can the phrase "and for other related purposes" in EO 503’s title be understood to
encompass the consequences of the change in the local government position’s nature.

Furthermore, construing that the administrator position in Section 2(a), paragraph 8 pertains to city, municipal and/or
provincial administrators would result in a legal infirmity. EO 503 was issued pursuant to the President’s ordinance
powers to provide for rules that are general or permanent in character for the purpose of implementing the President’s
constitutional or statutory powers.41 Exercising her constitutional duty to ensure that all laws are faithfully executed,
then President Corazon Aquino issued EO 503 to ensure the executive’s compliance with paragraph (i), Section 17 of
RA 7160, which requires local government units to absorb the personnel of national agencies whose functions shall be
devolved to them.42 This is reflected in EO 503’s title and whereas clauses, and its limited application as discussed
earlier.

Thus, the dissenting opinion’s interpretation would result in the judicial recognition of an act of the Executive usurping
a legislative power. The grant of permanent status to incumbent provincial administrators, despite the clear language
and intent of RA 7160 to make the position coterminous, is an act outside the President’s legitimate powers. The
power to create, abolish and modify public offices is lodged with Congress.43 The President cannot, through an
Executive Order, grant permanent status to incumbents, when Congress by law has declared that the positions they
occupy are now confidential. Such act would amount to the President’s amendment of an act of Congress – an act
that the Constitution prohibits. Allowing this kind of interpretation violates the separation of powers, a constitutionally
enshrined principle that the Court has the duty to uphold.44

The dissent counters this argument by pointing out that Section 2(a), paragraph 8 of EO 503 enjoys the legal
presumption of validity. Unless the law or rule is annulled in a direct proceeding, the legal presumption of its validity
stands. The EO’s validity, however, is not in question in the present case. What is at issue is a proper interpretation of
its application giving due respect to the principle of separation of powers, and the dissenting opinion’s interpretation
does violence to this principle.

Gonzales has security of tenure, but only as a primarily confidential employee

To be sure, both career and non-career service employees have a right to security of tenure.1âwphi1 All permanent
officers and employees in the civil service, regardless of whether they belong to the career or non-career service
category, are entitled to this guaranty; they cannot be removed from office except for cause provided by law and after
procedural due process.45 The concept of security of tenure, however, labors under a variation for primarily
confidential employees due to the basic concept of a "primarily confidential" position. Serving at the confidence of the
appointing authority, the primarily confidential employee’s term of office expires when the appointing authority loses
trust in the employee. When this happens, the confidential employee is not "removed" or "dismissed" from office; his
term merely "expires"46 and the loss of trust and confidence is the "just cause" provided by law that results in the
termination of employment. In the present case where the trust and confidence has been irretrievably eroded, we
cannot fault Governor Pimentel’s exercise of discretion when he decided that he could no longer entrust his
confidence in Gonzales.

Security of tenure in public office simply means that a public officer or employee shall not be suspended or dismissed
except for cause, as provided by law and after due process. It cannot be expanded to grant a right to public office
despite a change in the nature of the office held. In other words, the CSC might have been legally correct when it
ruled that the petitioner violated Gonzales’ right to security of tenure when she was removed without sufficient just
cause from her position, but the situation had since then been changed. In fact, Gonzales was reinstated as ordered,
but her services were subsequently terminated under the law prevailing at the time of the termination of her service;
i.e., she was then already occupying a position that was primarily confidential and had to be dismissed because she
no longer enjoyed the trust and confidence of the appointing authority. Thus, Gonzales’ termination for lack of
confidence was lawful. She could no longer be reinstated as provincial administrator of Camarines Norte or to any
other comparable position. This conclusion, however, is without prejudice to Gonzales’ entitlement to retirement
benefits, leave credits, and future employment in government service.

WHEREFORE, all premises considered, we hereby GRANT the petition, and REVERSE and SET ASIDE the Decision
dated June 25, 2008 and the Resolution dated December 2, 2008 of the Court of Appeals in CAG.R. SP No. 97425.

SO ORDERED.

ARTURO D. BRION
Associate Justice