bb environmental law and procedural rules

ENVIRONMENTAL LAW AND PROCEDURAL RULES

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ENVIRONMENTAL LAW AND PROCEDURAL RULES Antonio G.M. La Via and Josef Leroi L. Garcia

A. Definition

Environmental law covers all laws that relate to the preservation, protection, conservation, exploitation, utilization, development, and management of the environment and its natural resources. Major Philippine environmental laws can be divided into three categories, viz: Those that primarily deal with:

1) the regulation of exploitation, utilization and development of natural

resources; 2) the preservation, protection, and conservation of flora and fauna; and 3) pollution and environmental management.

Those that belong to the first category include the following: 1) Presidential Decree No. 705, Revised Forestry Code, as amended by

Pres. Decree No. 1559, Executive Order No. 277, and Republic Act No. 7161;

2) Rep. Act No. 8550, Philippine Fisheries Code; 3) Rep. Act No. 7076, Peoples Small-Scale Mining Act; and 4) Rep. Act. No. 7942, Philippine Mining Act.

Those that belong to the second category include the following: 1) Rep. Act No. 7586, National Integrated Protected Areas System Act; 2) Rep. Act No. 9147, Wildlife Conservation and Protection Act; and 3) Rep. Act No. 9072, National Caves and Cave Resources

Management Act.

Those that belong to the third category include the following: 1) Pres. Decree No. 979, Marine Pollution Decree; 2) Pres. Decree No. 1586, Establishing an Environmental Impact

Statement System; 3) Rep. Act No. 8749, Clean Air Act; 4) Rep. Act No. 9275, Clean Water Act; 5) Rep. Act No. 9003, Ecological Solid Waste Management Act; and 6) Rep. Act No. 6969, Toxic Substances and Hazardous Waste Act.


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B. Rules of Procedure for Environmental Cases

Supreme Court Administrative Matter No. 09-6-8-SC dated April 13, 2010 lays down the Rules of Procedure for Environmental Cases1.

These Rules govern the procedure in civil, criminal, and special civil actions before the Regional Trial Courts (RTC), Metropolitan Trial Courts (MTC), Municipal Trial Courts in Cities (MTCC), Municipal Trial Courts (MTC), and Municipal Circuit Trial Courts (MCTC) involving enforcement or violations of environmental and other related laws, rules, and regulations.2 C. Environmental Laws Covered by the Rules

It is important to note that Section 2 on the Scope thereof gives an enumeration of said laws and rules that the case be involved in but inferentially states that the listing is not exhaustive by using the phrase such as but not limited to the following:

1) Act No. 3572, Prohibition Against Cutting of Tindalo, Akli, and Molave

Trees; 2) Pres. Decree No. 705, Revised Forestry Code; 3) Pres. Decree No. 856, Sanitation Code; 4) Pres. Decree No. 979, Marine Pollution Decree; 5) Pres. Decree No. 1067, Water Code; 6) Pres. Decree No. 1151, Philippine Environmental Policy of 1977; 7) Pres. Decree No. 1433, Plant Quarantine Law of 1978; 8) Pres. Decree No. 1586, Establishing an Environmental Impact

Statement System Including Other Environmental Management Related Measures and for Other Purposes;

9) Rep. Act No. 3571, Prohibition Against the Cutting, Destroying or Injuring of Planted or Growing Trees, Flowering Plants and Shrubs or Plants of Scenic Value along Public Roads, in Plazas, Parks, School Premises or in any Other Public Ground;

10) Rep. Act No. 4850, Laguna Lake Development Authority Act; 11) Rep. Act No. 6969, Toxic Substances and Hazardous Waste Act; 12) Rep. Act No. 7076, Peoples Small-Scale Mining Act; 13) Rep. Act No. 7586, National Integrated Protected Areas System Act

including all laws, decrees, orders, proclamations and issuances establishing protected areas;

14) Rep. Act No. 7611, Strategic Environmental Plan for Palawan Act; 15) Rep. Act No. 7942, Philippine Mining Act; 16) Rep. Act No. 8371, Indigenous Peoples Rights Act; 17) Rep. Act No. 8550, Philippine Fisheries Code;

1 AM. No. 09-6-8-SC, Effective April 29, 2010. 2 RULES OF PROCEDURE FOR ENVIRONMENTAL CASES, Rule 1, Sec. 2.


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18) Rep. Act No. 8749, Clean Air Act; 19) Rep. Act No. 9003, Ecological Solid Waste Management Act; 20) Rep. Act No. 9072, National Caves and Cave Resource Management

Act; 21) Rep. Act No. 9147, Wildlife Conservation and Protection Act; 22) Rep. Act No. 9175, Chainsaw Act; 23) Rep. Act No. 9275, Clean Water Act; 24) Rep. Act No. 9483, Oil Spill Compensation Act of 2007; and 25) Provisions in Commonwealth Act No. 141, The Public Land Act; Rep.

Act No. 6657, Comprehensive Agrarian Reform Law of 1988; Rep. Act No. 7160, Local Government Code of 1991; Rep. Act No. 7161, Tax Laws Incorporated in the Revised Forestry Code and Other Environmental Laws (Amending the NIRC); Rep. Act No. 7308, Seed Industry Development Act of 1992; Rep. Act No. 7900, High-Value Crops Development Act; Rep. Act No. 8048, Coconut Preservation Act; Rep. Act No. 8435, Agriculture and Fisheries Modernization Act of 1997; Rep. Act No. 9522, The Philippine Archipelagic Baselines Law; Rep. Act No. 9593, Renewable Energy Act of 2008; Rep. Act No. 9637, Philippine Biofuels Act; and other existing laws that relate to the conservation, development, preservation, protection, and utilization of the environment and natural resources.3

D. Precautionary Principle

This is one of the distinctive features of this Rule.

1. Definition

When human activities have an environmental effect that may lead to (1) threats to human life or health; (2) inequity to present or future generations; or (3) prejudice to the environment without legal consideration of the environmental rights of those affected, although there is a lack of full scientific certainty in establishing a causal link thereto, the court shall apply the precautionary principle in resolving the action to avoid or diminish that threat, inequity or prejudice. The benefit of any doubt shall be given to the constitutional right of the people to a balanced and healthful ecology.4

3 Id. 4 Id, Rule 20, Secs. 1 and 2.


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2. Application as a Rule of Evidence

Under the Rules of Procedure for Environmental Cases, the courts in civil, criminal, and special civil actions shall apply the precautionary principle as a rule of evidence.

3. Standards for Application

In applying the precautionary principle, the following factors, among

others, may be considered: 1) threats to human life or health; 2) inequity to present or future generations; or 3) prejudice to the environment without legal consideration of the

environmental rights of those affected.5 5 Id., Sec. 2.


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I. CRIMINAL CASES

A. Original and Exclusive Jurisdiction of First Level Courts

1. Violation of Forestry Laws

1.1. All the criminal offenses punished under Pres. Decree No. 705 or the Revised Forestry Code, as follows: 1) Cutting, gathering, collecting, possessing timber or other forest

products without license or permit (Sec. 77); 2) Unlawful occupation or destruction of forest and grazing lands and

kaingin (Sec. 78); 3) Pasturing livestock in public lands without authority (Sec. 79); 4) Illegal occupation of national parks and vandalism (Sec. 80); 5) Destruction of wildlife resources (Sec. 81); 6) Survey by unauthorized persons (Sec. 82); 7) Misclassification and survey of forest land as alienable and disposable

land by public official or employee (Sec. 83); 8) Issuance of tax declaration without DENR certification (Sec. 84); 9) Coercion and influence of public official (Sec. 85); 10) Unlawful possession of implements and devices used by forest

officers (Sec. 86); 11) Failure to pay, collect, or remit forest charges (Sec. 87); and 12) Sale of wood products without complying with grading rules (Sec. 88).

1.2 Criminal offenses under the Chain Saw Act (Rep. Act No. 9175): 1) Selling, purchasing, re-selling, transferring, distributing or possessing a

chainsaw without permit; 2) Unlawful importation or manufacture of chainsaw; and 3) Tampering of engine serial number.

2. Violation of Fishery Laws

Offenses punished under the Philippine Fisheries Code (Rep. Act No. 8550): 1) Unauthorized fishing (Sec. 86); 2) Poaching (Sec. 87); 3) Possession of explosives, noxious or poisonous substance, or electro-

fishing devices (Sec. 88); 4) Dealing in, selling, disposing of, for profit, illegally caught fish (Sec.

88); 5) Use of fine mesh net (Sec. 89);


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6) Use of active gear in municipal waters and bays (Sec. 90); 7) Coral exploitation and exportation (Sec. 91); 8) Illegal use of superlights (Sec. 93); 9) Fishing in overfished and closed season areas (Sec. 95); 10) Fishing in fishery reserves, refuge and sanctuaries (Sec. 96); 11) Violation of catch ceilings (Sec. 101); 12) Illegal gathering and marketing of shell fishes (Sec. 103 [c]); 13) Obstruction to navigation or flow and ebb of tide (Sec. 103 [d]); 14) Illegal construction and operation of fish traps, fish pens and fish

cages (Sec. 103 [e]); and 15) Obstruction of fishery law enforcer (Sec. 106).

3. Violation of Mining Laws

3.1.Criminal offenses punished under the Philippine Mining Act (Rep.

Act No. 7942): 1) Illegal exploration (Sec. 102); 2) Theft of minerals (Sec. 103); 3) Destruction of mining structures (Sec. 104); 4) Willful damage to mine (Sec. 106); 5) Obstruction of permittees or contractors (Sec. 107); 6) Violation of terms of Environmental Compliance Certificate (ECC)

(Sec. 108); and 7) Obstruction of government officials (Sec. 109);

3.2 All Violations of the Small-Scale Mining Act (Rep. Act No. 7076).

4. Violation of NIPAS Law

All criminal offenses punished under Sec. 20 of the National Integrated

Protected Areas Law (Rep. Act No. 7586), as follows:

1) Hunting, destroying, disturbing, or mere possession of any plant or animal or product derived therefrom without a permit from the Management Board;

2) Dumping of any waste product detrimental to the protected area, or to the plants and animals or inhabitants therein;

3) Use of any motorized equipment without a permit from the Management Board;

4) Mutilating, defacing or destroying objects of natural beauty or objects of interest to cultural communities;

5) Damaging and leaving roads and trails in a damaged condition; 6) Squatting, mineral locating, or otherwise occupying any land; 7) Constructing or maintaining any kind of structure, fences or

enclosures, conducting any business enterprise without a permit;


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8) Leaving in exposed or unsanitary conditions refuse or debris, or depositing in ground or in bodies of water; and

9) Altering, removing, destroying or defacing boundary marks or signs.

5. Violation of Wildlife Law

Criminal offenses punished under Sec. 27 of the Wildlife Conservation and Protection Act (Rep. Act No. 9147):

1) Killing and destroying wildlife species, except in the following instances;

a) when it is done as part of the religious rituals of established tribal groups or indigenous cultural communities;

b) when the wildlife is afflicted with an incurable communicable disease;

c) when it is deemed necessary to put an end to the misery suffered by the wildlife;

d) when it is done to prevent an imminent danger to the life or limb of a human being; and

e) when the wildlife is killed or destroyed after it has been used in authorized research or experiments.

2) Inflicting injury which cripples and/or impairs the reproductive system of wildlife species;

3) Trading of wildlife; 4) Collecting, hunting or possessing wildlife, their by-products and

derivatives; 5) Gathering or destroying of active nests, nest trees, host plants and the

like; 6) Maltreating and/or inflicting other injuries not covered by the preceding

paragraph; and 8) Transporting of wildlife.

6. Violation of Cave Laws

Criminal offenses punished under Secs. 7 and 8 of the National Caves

and Cave Resources Management Act (Rep. Act No. 9072): 1) Knowingly destroying, disturbing, defacing, marring, altering, removing,

or harming the speleogem or speleothem of any cave or altering the free movement of any animal or plant life into or out of any cave;

2) Gathering, collecting, possessing, consuming, selling, bartering or exchanging or offering for sale without authority any cave resource; and

3) Counseling, procuring, soliciting or employing any other person to commit any of the above acts.


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7. Violation of Pollution Laws

7.1 Criminal offenses punished under Sec. 4 of the Marine Pollution Decree (Pres. Decree No. 979):

1) Discharge or dumping of oil, noxious gaseous and liquid

substances and other harmful substances from or out of any ship, vessel, barge, or any other floating craft, or other man-made structures at sea;

2) Discharge or dumping of any refuse matter other than that flowing from streets and sewers out of any ship, barge, or other floating craft of vessel, or from the shore, wharf, manufacturing establishment, or mill into tributary of any navigable water; and

3) Depositing of material of any kind on the bank of a navigable water or its tributary.

7.2 Criminal offense of failure to undertake clean-up operations6,

willfully or through gross negligence, as punished under Sec. 28 of the Clean Water Act (Rep. Act No. 9275).

7.3 All criminal offenses of violations of provisions of the Clean Air Act

(Rep. Act No. 8749) other than those administratively penalized under Secs. 45 and 46 and those considered as gross violations under Sec. 48 thereof.

7.4 Criminal offenses punished under Secs. 48 and 49 of the

Ecological Solid Waste Management Act (Rep. Act No. 9003):

1) Littering, throwing, dumping of waste matters in public places; 2) Operating, collecting or transporting equipment in violation of

sanitation requirements or permits; 3) Open burning of solid waste; 4) Causing or permitting the collection of non-segregated or unsorted

wastes; 5) Squatting in open dumps and landfills; 6) Open dumping, burying of biodegradable or non-biodegradable

materials in flood prone areas; 7) Unauthorized removal of recyclable material intended for collection

by authorized persons;

6 Republic Act No. 9275 [2004], Sec. 4 (g): Clean-up operations means activities involving the removal of pollutants discharged or spilled into a water body and its surrounding areas, and the restoration of the affected areas to their former physical, chemical and biological state or conditions.


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8) Mixing of source-separated recyclable material with other solid waste in any vehicle, box, container or receptacle used in solid waste collection or disposal;

9) Establishment or operation of open dumps as enjoined in this Act, or closure of said dumps in violation of Sec. 37;

10) Manufacture, distribution or use of non-environmentally acceptable packaging materials;

11) Importation of consumer products packaged in non-environmentally acceptable materials;

12) Importation of toxic wastes misrepresented as "recyclable" or "with recyclable content";

13) Transport and dumping in bulk of collected domestic, industrial, commercial, and institutional wastes in areas other than prescribed centers or facilities;

14) Site preparation, construction, expansion or operation of waste management facilities without an Environmental Compliance Certificate and conforming with the land use plan of the LGU;

15) Construction of any establishment within two hundred (200) meters from open dumps or controlled dumps, or sanitary landfill; and

16) Construction or operation of landfills or any waste disposal facility on any aquifer, groundwater reservoir, or watershed area and or any portions thereof.

7.5 Criminal offenses punished under Sec. 13 of the Toxic Substances

and Hazardous Waste Act (Rep. Act No. 6969):

1) Use of chemical substance or mixture which is imported, manufactured, processed or distributed in violation of the Act or its implementing rules and regulations or orders;

2) Failure or refusal to submit reports, notices or other information, access to records, as required by the Act, or to permit inspection of establishment where chemicals are manufactured, processed, stored or otherwise held; and

3) Failure or refusal to comply with pre-manufacture and pre-importation requirements.

B. Original and Exclusive Jurisdiction of Second Level Courts

1. Violation of Forestry Laws

Crime of actual unlawful use of chain saws under Sec. 7 (4) of the Chain Saw Act (Rep. Act No. 9175).


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2. Violation of Fishery Laws

Criminal offenses punished under the Philippine Fisheries Code (Rep. Act No. 8550):

1) Actual use of explosives, noxious or poisonous substance, or electro-fishing devices (Sec. 88 [3]);

2) Muro-ami (Sec. 92); 3) Conversion of mangroves (Sec. 94); 4) Fishing or taking rare, threatened or endangered species

(Sec. 97); 5) Capture of sabalo or other breeders/spawners (Sec. 98); 6) Importation or exportation of fish or fishery species (Sec. 100); 7) Aquatic pollution (Sec. 102); and 8) Obstruction of defined migration paths (Sec. 105).

3. Violation of Mining Laws

Criminal offense of mines arson punished under Sec. 105 of the

Philippine Mining Act (Rep. Act No. 7942).

4. Violation of Wildlife Laws Criminal offenses punished under the Wildlife Conservation and Protection Act (Rep. Act No. 9147):

1) Effecting any of the following acts in critical habitats: a) Dumping of waste products detrimental to wildlife; b) Squatting or otherwise occupying any portion of the

critical habitat; c) Mineral exploration and/or extraction; d) Burning; e) Logging; and f) Quarrying.

2) Introduction, reintroduction or restocking of wildlife resources.

5. Violation of Cave Laws

Criminal offenses when committed by persons furnishing the capital to accomplish the same, as penalized under Secs. 7 and 8 of the National Caves and Cave Resources Management Act (Rep. Act No. 9072):

1) Knowingly destroying, disturbing, defacing, marring, altering, removing, or harming the speleogem or speleothem of any cave or altering the free movement of any animal or plant life into or out of any cave;


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2) Gathering, collecting, possessing, consuming, selling, bartering or exchanging or offering for sale without authority any cave resource; and

3) Counseling, procuring, soliciting or employing any other person to commit any of the above acts.

6. Violation of Pollution Laws

6.1 Criminal offenses punished under Sec. 28 of the Clean Water Act

(Rep. Act No. 9275):

1) Failure or refusal to undertake clean-up operations, willfully, or through gross negligence resulting in serious injury or loss of life and/or irreversible contamination of surface, ground, coastal and marine water;

2) Deliberate discharge of toxic pollutants identified pursuant to Rep. Act No. 6969 in toxic amounts;

3) Five (5) or more violations of the Clean Water Act within a period of two (2) years; and

4) Blatant disregard of the orders of the Pollution Adjudication Board (PAB), such as the non-payment of fines, breaking of seals, or operating despite the existence of an order for closure, discontinuance or cessation of operation.

6.2 All criminal offenses considered as gross violations of the Clean

Air Act (Rep. Act No. 8749), as enumerated under Sec. 48 thereof:

1) Three (3) or more specific offenses within a period of one (1) year; 2) Three (3) or more specific offenses with three (3) consecutive

years; 3) Blatant disregard of the orders of the PAB, such as, but not limited

to the breaking of seal, padlocks and other similar devices, or operation despite the existence of an order for closure, discontinuance or cessation of operation; and

4) Irreparable or grave damage to the environment as a consequence of any violation of the provisions of the Clean Air Act.

6.3 Criminal offense of causing, aiding or facilitating, directly or

indirectly, in the storage, importation, or bringing into Philippine territory, including its maritime economic zones, even in transit, either by means of land, air or sea transportation, or otherwise keeping in storage any amount of hazardous and nuclear wastes in any part of the Philippines, as punished under Sec. 13 of the Toxic Substances and Hazardous Waste Act (Rep. Act No. 6969).


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C. Arrest 1. Warrantless Arrest

A peace officer or an individual deputized by the proper government

agency may, without a warrant, arrest a person:

1) When, in his presence, the person to be arrested has committed, is actually committing or is attempting to commit an offense; or

2) When an offense has just been committed, and he has probable cause to believe, based on personal knowledge of facts or circumstances that the person to be arrested has committed it.7

2. Application of Presumption of Regularity to Deputized Individuals

A peace officer or an individual deputized by the proper government

agency may effect a warrantless arrest. Individuals deputized by the proper government agency who are enforcing environmental laws shall enjoy the presumption of regularity, under Sec. 3(m), Rule 131 of the Rules of Court, when effecting arrests for violations of environmental laws.8

3. Arrest Warrant

All warrants of arrest issued by the court shall be accompanied by a certified true copy of the information filed with the issuing court.9

D. Custody and Disposition of Seized Items

1. Applicability of Rules of Government Agency

The custody and disposition of seized items shall be in accordance with the applicable laws or rules promulgated by the concerned government agency.10

7 RULES OF PROCEDURE FOR ENVIRONMENTAL CASES, Rule 11, Sec. 1; See section on FORESTRY: Authority to Deputize Environment and Natural Resources Officers and FISHERIES: Authority over Municipal Waters and Jurisdiction of the DA-BFAR, subsections on Law Enforcement. 8 Id., Rule 11, Sec. 1(b). 9 Id., Sec. 2. 10 Id., Rule 12, Sec. 1; See Appendices for DENR and DA-BFAR rules on seizure and custody of forest products, fish catch, vehicles, boats, and logging and fishing paraphernalia.


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2. Applicability of Rules of Procedure for Environmental Cases

In the absence of applicable laws or rules promulgated by the concerned government agency, Rule 12, Sec. 2 of the Rules of Procedure for Environmental Cases shall apply.11

3. Documentation of Seized Items

The apprehending officer having initial custody and control of the

seized items, equipment, paraphernalia, conveyances and instruments shall physically inventory and, whenever practicable, photograph the same in the presence of the person from whom such items were seized.12

4. Return of Search Warrant or Submission of Report

The apprehending officer shall submit to the issuing court the return of

the search warrant within five (5) days from date of seizure or, in case of warrantless arrest, submit within five (5) days from date of seizure the inventory report, compliance report, photographs, representative samples and other pertinent documents to the public prosecutor for appropriate action.13

5. Auction of Seized Items

Upon motion by any interested party, the court may direct the auction

sale of seized items, equipment, paraphernalia, tools or instruments of the crime. The court shall, after hearing, fix the minimum bid price based on the recommendation of the concerned government agency. The sheriff shall conduct the auction.14

The auction sale shall be with notice to the accused, the person from

whom the items were seized, or the owner thereof and the concerned government agency. The notice of auction shall be posted in three conspicuous places in the city or municipality where the items, equipment, paraphernalia, tools or instruments of the crime were seized. The proceeds shall be held in trust and deposited with the government depository bank for disposition according to the judgment.15

11 Id., Rule 12, Sec. 2. 12 Id.,Sec.2 (a). 13 Id., Sec.2 (b). 14 Id., Rule 12, Sec.2(c). 15 Id., Sec.2 (d,e, and f).


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E. Complaint and Information

1. Who May Initiate

Any offended party, peace officer or any public officer charged with the enforcement of an environmental law may file a complaint before the proper officer in accordance with the Rules of Court.16

2. Filing of Information

The information charging a person with a violation of an

environmental law and subscribed by the prosecutor shall be filed with the court. 17

3. Special Prosecutor

Where there is no private offended party, a counsel whose services

are offered by any person or organization may be allowed by the court as special prosecutor, with the consent of and subject to the control and supervision of the public prosecutor.18

F. Bail

1. Where Filed; Hold Departure Order

Bail in the amount fixed may be filed with the court where the case is pending, or in the absence or unavailability of the judge thereof, with any regional trial judge, metropolitan trial judge, municipal trial judge or municipal circuit trial judge in the province, city or municipality. If the accused is arrested in a province, city or municipality other than where the case is pending, bail may also be filed with any Regional Trial Court of said place, or if no judge thereof is available, with any metropolitan trial judge, municipal trial judge or municipal circuit trial judge therein. If the court grants bail, the court may issue a hold-departure order in appropriate cases.19

16 Id., Rule 9, Sec. 1. 17 Id., Sec. 2. 18 Id., Sec. 3. 19 Id., Rule 14, Sec. 1.


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2. Conditions for Grant of Bail

Before granting the application for bail, the judge must read the information in a language known to and understood by the accused and require the accused to sign a written undertaking, as follows:

1) To appear before the court that issued the warrant of arrest for

arraignment purposes on the date scheduled, and if the accused fails to appear without justification on the date of arraignment, accused waives the reading of the information and authorizes the court to enter a plea of not guilty on behalf of the accused and to set the case for trial;

2) To appear whenever required by the court where the case is pending; and

3) To waive the right of the accused to be present at the trial, and upon failure of the accused to appear without justification and despite due notice, the trial may proceed in absentia.20

G. Arraignment and Plea-Bargaining

1. Setting of Arraignment; Notices

The court shall set the arraignment of the accused within fifteen (15) days from the time it acquires jurisdiction over the accused, with notice to the public prosecutor and offended party or concerned government agency that it will entertain plea-bargaining on the date of the arraignment.21

2. Procedure in Plea-Bargaining

On the scheduled date of arraignment, the court shall consider plea-

bargaining arrangements. Where the prosecution and offended party or concerned government agency agree to the plea offered by the accused, the court shall:

1) Issue an order which contains the plea-bargaining arrived at; 2) Proceed to receive evidence on the civil aspect of the case, if any;

and 3) Render and promulgate judgment of conviction, including the civil

liability for damages.22 20 Id., Sec. 2. 21 Id., Rule 15, Sec. 1. 22 Id., Sec. 2.


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H. Pre-Trial

1. Preliminary Conference; Purpose

After the arraignment, the court shall set the pre-trial conference within thirty (30) days. It may refer the case to the branch clerk of court, if warranted, for a preliminary conference to be set at least three (3) days prior to the pre-trial.23

The preliminary conference shall be for the following purposes:

1) To assist the parties in reaching a settlement of the civil aspect of

the case; 2) To mark the documents to be presented as exhibits; 3) To attach copies of the documents to the records after comparison

with the originals; 4) To ascertain from the parties the undisputed facts and admissions

on the genuineness and due execution of documents marked as exhibits;

5) To consider such other matters as may aid in the prompt disposition of the case;

6) To record the proceedings during the preliminary conference in the Minutes of Preliminary Conference to be signed by the parties and counsel;

7) To mark the affidavits of witnesses which shall be in question and answer form and shall constitute the direct examination of the witnesses; and

8) To attach the Minutes and marked exhibits to the case record before the pre-trial proper.24

The parties or their counsel must submit to the branch clerk of court the names, addresses and contact numbers of the affiants.25

2. How Conducted by the Court

During the pre-trial, the court shall:

1) Place the parties and their counsels under oath; 2) Adopt the minutes of the preliminary conference as part of the pre-

trial proceedings, confirm markings of exhibits or substituted photocopies and admissions on the genuineness and due execution of documents, and list object and testimonial evidence;

3) Scrutinize the information and the statements in the affidavits and other documents which form part of the record of the preliminary

23 Id., Rule 16, Sec. 1. 24 Id. 25 Id.


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investigation, together with other documents identified and marked as exhibits, to determine further admissions of facts as to:

a) The courts territorial jurisdiction relative to the offense(s) charged;

b) Qualification of expert witnesses; and c) Amount of damages;

4) Define factual and legal issues; 5) Ask parties to agree on the specific trial dates and adhere to the

flow chart determined by the court, which shall contain the time frames for the different stages of the proceeding up to promulgation of decision;

6) Require the parties to submit to the branch clerk of court the names, addresses and contact numbers of witnesses that need to be summoned by subpoena; and

7) Consider modification of order of trial if the accused admits the charge but interposes a lawful defense.26

3. Manner of Directing Questions, Admissions and Agreements, and Documentation

All questions or statements must be directed to the court.27 All

agreements or admissions made or entered during the pre-trial conference shall be reduced in writing and signed by the accused and counsel; otherwise, they cannot be used against the accused. The agreements covering the matters referred to in Section 1, Rule 118 of the Rules of Court shall be approved by the court.28

All proceedings during the pre-trial shall be recorded, the transcripts

prepared, and the minutes signed by the parties or their counsels.29

4. Pre-Trial Order

The court shall issue a pre-trial order within ten (10) days after the termination of the pre-trial, setting forth the actions taken during the pre-trial conference, the facts stipulated, the admissions made, evidence marked, the number of witnesses to be presented, and the schedule of trial. The order shall bind the parties and control the course of action during the trial.30

26 Id., Sec. 3. 27 Id., Sec. 4. 28 Id., Sec. 5. 29 Id., Sec. 6. 30 Id., Sec. 7.


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I. Trial

1. Continuous Trial; Affidavits In Direct Examination

The court shall endeavor to conduct continuous trial which shall not exceed three (3) months from the date of the issuance of the pre-trial order.31 For this purpose, affidavits in lieu of direct examination shall be used, subject to cross-examination and the right to object to inadmissible portions of the affidavit.32

2. Submission of Memoranda

The court may require the parties to submit their respective

memoranda and if possible, in electronic form, within a non-extendible period of thirty (30) days from the date the case is submitted for decision.33

3. Period to Decide and Dispose of the Case

With or without any memoranda filed, the court shall have a period of

sixty (60) days to decide the case counted from the last day of the 30-day period to file the memoranda.34 The court shall dispose the case within a period of ten (10) months from the date of arraignment.35

4. Pro-bono Lawyers

If the accused cannot afford the services of counsel or there is no available public attorney, the court shall require the Integrated Bar of the Philippines to provide pro bono lawyers for the accused.36

J. Civil Action and Liability

1. Institution of Civil Action

When a criminal action is instituted, the civil action for the recovery of civil liability arising from the offense charged shall be deemed instituted with the criminal action, unless the complainant waives the civil action, reserves the right to institute it separately or institutes the civil action prior to the criminal action. 37

31 Id., Rule 17, Sec. 1. 32 Id., Sec. 2. 33 Id., Sec. 3. 34 Id. 35 Id., Sec. 4. 36 Id., Sec. 5. 37 Id, Rule 10, Sec. 1.


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Unless the civil action has been instituted prior to the criminal action,

the reservation of the right to institute separately the civil action shall be made during arraignment.38

2. Award of Damages to Agency for Restoration and Rehabilitation

In case civil liability is imposed or damages are awarded, the filing and

other legal fees shall be imposed on said award in accordance with Rule 141 of the Rules of Court, and the fees shall constitute a first lien on the judgment award. The damages awarded in cases where there is no private offended party, less the filing fees, shall accrue to the funds of the agency charged with the implementation of the environmental law violated. The award shall be used for the restoration and rehabilitation of the environment adversely affected.39

3. Subsidiary Liability

In case of conviction of the accused and subsidiary liability is allowed by law, the court may, by motion of the person entitled to recover under judgment, enforce such subsidiary liability against a person or corporation subsidiarily liable under Article 102 and Article 103 of the Revised Penal Code.40

K. Provisional Remedies

1. Attachment

The provisional remedy of attachment under Rule 127 of the Rules of Court may be availed of in environmental cases.41

2. EPO and TEPO in Criminal Cases

The procedure for the issuance of Environmental Protection Orders

(EPO) and Temporary Environmental Protection Orders (TEPO) shall be governed by Rule 2 of the Rules of Procedure for Environmental Cases.42

38 Id., second paragraph. 39 Id., Rule 10, Sec. 1. 40 Id., Rule 18, Sec. 1. 41 Id., Rule 13, Sec. 1. 42 Id., Sec. 2; See Section on Civil Cases: Environmental Protection Order.


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L. Criminal SLAPP Suits

1. Defined

Strategic lawsuit against public participation (SLAPP) refers to an action whether civil, criminal or administrative, brought against any person, institution or any government agency or local government unit or its officials and employees, with the intent to harass, vex, exert undue pressure or stifle any legal recourse that such person, institution or government agency has taken or may take in the enforcement of environmental laws, protection of the environment or assertion of environmental rights.43

2. SLAPP Suit; Ground for a Motion to Dismiss in a Criminal Case

Upon the filing of an information in court and before arraignment, the

accused may file a motion to dismiss on the ground that the criminal action is a Strategic Lawsuit Against Public Participation or a SLAPP suit.44

3. Summary Hearing; Prosecutions and Accused Quantum of Evidence Distinguished

The hearing on the defense of a SLAPP shall be summary in nature.

The parties must submit all the available evidence in support of their respective positions. The party seeking the dismissal of the case must prove by substantial evidence that his acts for the enforcement of environmental law are a legitimate action for the protection, preservation and rehabilitation of the environment. The party filing the action assailed as a SLAPP shall prove by preponderance of evidence that the action is not a SLAPP.45

4. Determination by the Court

The court shall grant the motion if the accused establishes in the

summary hearing that the criminal case has been filed with intent to harass, vex, exert undue pressure or stifle any legal recourse that any person, institution or the government has taken or may take in the enforcement of environmental laws, protection of the environment or assertion of environmental rights. If the court denies the motion, it shall immediately proceed with the arraignment of the accused.46

43 Id., Rule 1, Sec. 4 (g); Rule 6, Sec. 1. 44 Id., Rule 19, Sec. 1; See Section on Civil Cases: SLAPP Suits. 45 Id., Sec. 2. 46 Id., Sec. 3.


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II. Civil Cases

Limits on the Jurisdiction of First and Second Level Courts in Ordinary Civil Actions involving Environmental Laws

1. Primary Jurisdiction of the DENR

The jurisdiction of the DENR over matters which are addressed to its sound discretion as the government agency entrusted with the regulation of activities coming under its special technical knowledge and training will not be interfered with by the courts.47 The DENR possesses wide latitude of discretion in determining the appropriate actions to be taken to preserve and manage natural resources, and the proper parties who should enjoy the privilege of utilizing these resources.48 As the law confines in the DENR the power to determine these particular questions or matters, its jurisdiction prevails over the courts.49 Settled is the rule that the courts will defer to the decisions of the administrative offices and agencies by reason of their expertise and experience in the matters assigned to them pursuant to the doctrine of primary jurisdiction. Administrative decisions on matters within the jurisdiction of administrative bodies are to be respected and can only be set aside on proof of grave abuse of discretion, fraud, or error of law.50

2. Doctrine of Primary Jurisdiction Limits Court Jurisdiction

The enforcement of forestry laws, rules and regulations, and the

protection, development, and management of forest lands fall within the primary and special responsibilities of the DENR. By the very nature of its function, the DENR should be given a free hand unperturbed by judicial intrusion to determine a controversy which is well within its jurisdiction. The doctrine of primary jurisdiction does not warrant a court to arrogate unto itself the authority to resolve a controversy, the jurisdiction over which is initially lodged with an administrative body of special competence.51

47 Lianga Bay Logging Co., Inc. v. Enage, G.R. No. 30637, July 16, 1987, 152 SCRA 80; Ganitano v. Secretary of Agriculture and Natural Resources, G.R. No. 21167, March 31,1966, 16 SCRA 543. 48 Lim v.The Secretary of Agriculture and Natural Resources, G.R. No. 26990, August 31, 1970, 34 SCRA 751; Director of Forestry v. Muoz, G.R. No. 24796, June 28, 1968, 23 SCRA 1183. 49 Lianga Bay Logging Co., Inc. v. Enage, supra note 47. 50 Celestial Nickel Mining Exploration v. Macroasia, G.R. No. 169080, December 19, 2007, 541 SCRA 166. 51 Dagudag v. Paderanga, A.M. No. RTJ-06-2017, June 19, 2008, 555 SCRA 217; Euro-Med Laboratories v. Province of Batangas, G.R. No. 148106, July 17, 2006, 495 SCRA 301; Tabao v. Lilagan, A.M. No. RTJ- 01-1651, September 4, 2001, 364 SCRA 322; Paat v. Court of Appeals, G.R. No. 111107, January 10, 1997, 266 SCRA 167;


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3. Exhaustion of Administrative Remedies; Condition Precedent

The principle of exhaustion of administrative remedies applies insofar as the review of the decisions of the Secretary of the DENR and his subordinates is concerned. The doctrine of exhaustion of administrative remedies is basic. Courts should not entertain suits unless the available administrative remedies have first been resorted to and the proper authorities have been given an appropriate opportunity to act and correct their alleged errors, if any, committed in the administrative forum.52

Exhaustion of the remedies in the administrative forum, being a condition precedent prior to recourse to the courts and, more importantly, being an element of ones right of action, is too significant to be waylaid by the courts.53 It is a pre-condition that all the means afforded by the administrative processes should first be availed of before a court's judicial power can be sought. The premature judicial action is fatal to one's cause of action.54 Accordingly, absent any finding of waiver or estoppel, the case is susceptible to dismissal for lack of cause of action.55 In the case of the Secretary of the DENR, failure to appeal his decision to the Office of the President is a failure to exhaust administrative remedies.56

4. Failure to Exhaust Administrative Remedies May Constitute Forum-Shopping

If agreements of sale pertain to shares of stock which represent

ownership of mining rights or interest in mining agreements, the power of the MGB to rule on the validity of the questioned agreements of sale is inextricably linked to the very nature of such agreements over which the MGB has jurisdiction under the law. Unavoidably, there is identity of reliefs if the same issue is brought to the RTC. Forum shopping exists when both actions involve the same transactions, same essential facts and circumstances and raise identical causes of actions, subject matter, and issues. The case instituted with the RTC is correctly ordered dismissed on the ground of forum shopping. Not only is there forum-shopping, but also failure to exhaust administrative remedies, by opting to go ahead in seeking reliefs from the court even while those same reliefs were appropriately awaiting resolution by the MGB.57

A complaint in environmental cases is required to include a certification

against forum-shopping.58 52 Factoran v. Court of Appeals, G.R. No. 93540, December 13, 1999, 320 SCRA 530; Tabao v. Lilagan, supra note 51; Dagudag v. Paderanga, supra note 51. 53 Paat v. Court of Appeals, supra note 51. 54 Bangus Fisherfolk v. Lanzanas, G.R. No. 131442, July 10, 2003, 405 SCRA 530. 55 Dy v. Court of Appeals, G.R. No. 121587, March 9, 1999, 304 SCRA 331. 56 Tan v. Director of Forestry, G.R. No. 24548, October 27, 1983, 125 SCRA 302. 57 Lepanto Consolidated Mining v. WMC Resources International, G.R. Nos. 153885 and 156214, September 24, 2003, 412 SCRA 101. 58 RULES OF PROCEDURE IN ENVIRONMENTAL CASES, Rule 2, Sec. 3.


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5. Exceptions to Exhaustion of Administrative Remedies

The doctrine does not apply in the following cases: 59

1) Where the issue is purely a legal one, and nothing of an administrative nature is to be and can be done60

2) Where insistence on its observance would result in nullification of the claim being asserted61

3) Where the controverted act is patently illegal or was performed without jurisdiction or in excess of jurisdiction;

4) Where the respondent is a department secretary, whose acts as an alter ego of the President bear the implied or assumed approval of the latter, unless actually disapproved by him;

5) Where there are circumstances indicating the urgency of judicial intervention;62 and

6) When the rule does not provide a plaintiff speedy and adequate remedy63.

7) In an action for damages with preliminary mandatory injunction filed before the Regional Trial Court alleging that a timber licensee and IFMA holder has no authority to keep custody of confiscated timber and conveyances because it is a private entity and mere depository of the timber and conveyances, not a deputized enforcement officer, it was held that there was no need for exhaustion of administrative remedies. Despite the fact that there were ongoing administrative confiscation proceedings being conducted by the DENR, filing the action with the trial court did not violate the doctrine of exhaustion of remedies because it was for the purpose of transferring the custody of the confiscated products to the CENRO and the Office of the Government Prosecution and for resolving the cases with dispatch.64

8) A petition for mandamus filed with the Regional Trial Court to compel the DENR and its Environmental Management Bureau (EMB) to issue a Certificate of Non-Coverage under the Environmental Impact Assessment System is a proper remedy where the project is not an environmentally critical project or

59 Cuevas v. Pineda, G.R. No. 47617, August 29, 1986, 143 SCRA 674. 60 Dauan v. Secretary of Agriculture and Natural Resources, et. al., G.R. No. 19547, January 31, 1967, 19 SCRA 223; Del Mar v. Philippine Veterans Administration, G.R. No. 27299, June 27, 1973, 51 SCRA 340; Bagatsing v. Ramirez, G.R. No. 41631, December 17, 1976, 74 SCRA 306; Aguilar v. Valencia, G.R. No. 30396, July 30, 1971, 40 SCRA 210, and Commissioner of Immigration v. Vamenta, G.R. No. 34030, May 31, 1972, 45 SCRA 342. 61 Gravador v. Mamigo, G.R. No. 24989, July 21, 1967, 20 SCRA 742. 62 Gonzales v. Hechanova, G.R. No. 21897, October 22, 1963, 9 SCRA 230; Abaya v. Villegas, G.R. No. 25641, December 17, 1966, 18 SCRA 1034; Mitra v. Subido, G.R. No. 21691, September 15, 1967, 21 SCRA 127. 63 Cipriano v. Marcelino, G.R. No. 27793, February 28, 1972, 43 SCRA 291. 64 PICOP Resources v. Calo, G.R. No. 161798, October 20, 2004, 441 SCRA 46.


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located in an environmentally critical area. It is the ministerial duty of the EMB to issue the Certificate of Non-Coverage and said agency can be compelled to perform its duty through a petition for mandamus filed with the Regional Trial Court even without exhausting administrative remedies by first appealing the EMB decision to the DENR Secretary.65

6. Environmental Licenses and Permits are Not Contracts Protected by the Non-Impairment and Due Process Clauses

Timber licenses, permits, and license agreements are the principal

instruments by which the State regulates the utilization and disposition of forest resources to the end that public welfare is promoted. They merely evidence a privilege granted by the State to qualified entities, and do not vest in the latter a permanent or irrevocable right to the particular concession area and the forest products therein. They may be validly amended, modified, replaced or rescinded by the Chief Executive when national interest so requires. They are not deemed contracts within the purview of the due process of law clause.66

This holds true as well for mining exploration permits under Rep. Act No. 7942. Exploration permits merely evidence a privilege granted by the State, which may be amended, modified or rescinded when the national interest so requires. This is necessarily so since the exploration, development and utilization of the countrys natural mineral resources are matters impressed with great public interest. Like timber permits, mining exploration permits do not vest in the grantee any permanent or irrevocable right within the purview of the non-impairment of contract and due process clauses of the Constitution, since the State, under its all-encompassing police power, may alter, modify or amend the same, in accordance with the demands of the general welfare.67

The determination of what is in the public interest is necessarily vested in the State as owner of all mineral resources. Even if a license is valid, it can still be validly revoked by the State in the exercise of police power. The exercise of such power through a presidential proclamation is in accord with jura regalia, which reserves to the State ownership of all natural resources. This Regalian doctrine is an exercise of its sovereign

65 Republic v. City of Davao, G.R. No. 148622, September 12, 2002, 388 SCRA 691. 66 PICOP Resources v. Base Metals Mineral Resources, G.R. No. 163509, December 6, 2006, 510 SCRA 400; Oposa v. Factoran, G.R. No. 101083, July 30, 1993, 190 SCRA 673; Ysmael v. Deputy Executive Secretary, G.R. No. 79538, October 18, 1990, 224 SCRA 992; Tan v. Director of Forestry, supra note 56. 67 Southeast Mindanao Gold Mining v. Balite Portal Mining Cooperative, G.R. No. 135190, April 3, 2002; Sta. Ines Melale Forest Products Corporation v. Macaraig, Jr., G.R. No. 80849, December 2, 1998, 299 SCRA 491, citing Tan v. Director of Forestry, supra note 56, and Oposa v. Factoran, supra note 66.


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power as owner of lands of the public domain and of the patrimony of the nation, the mineral deposits of which are a valuable asset. A license is not a contract to which the protection accorded by the non-impairment clause may extend. Even if the license were, it is settled that provisions of existing laws and a reservation of police power are deemed read into it, because it concerns a subject impressed with public welfare. The non-impairment clause must yield to the police power of the state.68

6.1. Exception to the Rule

However, Sec. 40 of the Philippine Mining Act of 1995 requiring the approval of the President with respect to assignment or transfer of FTAAs, if made applicable retroactively, would be tantamount to an impairment of the obligations under said contract as it would effectively restrict the right of the parties thereto to assign or transfer their interests in the said FTAA. By imposing a new condition apart from those already contained in the agreement, before the parties to the FTAA may assign or transfer their rights and interest in the said agreement, Sec. 40 of the Philippine Mining Act of 1995, if made to apply to said FTAA, will effectively modify the terms of the original contract and thus impair the obligations of the parties thereto and restrict the exercise of their vested rights under the original agreement. Such modification to the FTAA, particularly in the conditions imposed for its valid transfer, is equivalent to an impairment of said contract in violation of the Constitution.69

7. Revocation of License or Franchise as an Exercise of Police Power

The grant of license does not create irrevocable rights, neither is it property or property rights. No franchise or right can be availed of to defeat the proper exercise of police power. The State has inherent power enabling it to prohibit all things hurtful to comfort, safety, and welfare of society. Pursuant to these principles, the Secretary of the DENR has the authority to revoke, on valid grounds, timber licenses issued by the Director of Forestry. Where there is supporting evidence, the revocation of a timber license is a valid exercise of this power.70

68 Republic of the Philippines v. Rosemoor Mining and Development Corporation, G. R. No. 149927, March 30, 2004, 426 SCRA 517. 69 Lepanto Consolidated Mining v. WMC Resources International, G.R. No. 162331, November 20, 2006, 507 SCRA 315. 70 Tan v. Director of Forestry, supra note 56.


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8. Courts should stand Clear from Public Policy Activity of Granting Environmental Licenses, Permits and Franchises

The courts recognize the wide latitude of discretion possessed by the government in determining the appropriate actions to be taken to preserve and manage natural resources, and the proper parties who should enjoy the privilege of utilizing these resources, more so where the interests of a private logging company are pitted against that of the public at large on the pressing public policy issue of forest conservation. The judiciary will stand clear from a public policy activity where the government is undertaking an assessment and evaluation of all timber license agreements entered into, and permits or licenses issued.71

A. Replevin Suits

1. Courts should dismiss Replevin Suits over Property Seized by DENR under its Administrative Confiscation Powers

The assumption by a trial court of a replevin suit filed by owners of

items apprehended or seized constitutes an unjustified encroachment into the DENRs prerogative to undertake administrative confiscation proceedings. The doctrine of primary jurisdiction does not warrant a court to arrogate unto itself the authority to resolve a controversy, the jurisdiction over which is initially lodged with an administrative body of special competence.72

Dismissal of a replevin suit for lack of cause of action in view of the owners failure to exhaust administrative remedies is the proper course of action for a court, not to assume jurisdiction over the case and, consequently, issue the writ ordering the return of the seized items.73

2. Judge demonstrates Ignorance of the Law in Entertaining Replevin Suits

A judge's act of taking cognizance of a replevin suit over property under DENR administrative confiscation proceedings or under custodia legis, if the case is already with the public prosecutor or another court, demonstrates ignorance of the law.74

71 Lim, Sr. v. The Secretary of Agriculture and Natural Resources, G.R. No. 26990, August 31, 1970, 34 SCRA 751; Director of Forestry v. Muoz, G.R. No. 24796, June 28, 1968, 23 SCRA 1183; Ysmael v. Deputy Executive Secretary, supra note 66. 72 Paat v. Court of Appeals, supra note 51; Tabao v. Lilagan, supra note 51. 73 Paat v. Court of Appeals, supra note 51; Dy v. Court of Appeals, supra note 55. 74 Tabao v. Lilagan, supra note 51.


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3. Seized and Apprehended property is in Custodia Legis and beyond reach of Replevin

Property apprehended and seized by DENR officials pursuant to administrative confiscation proceedings is held in custodia legis and, hence, beyond the reach of replevin. When a thing is in official custody of a judicial or executive officer in pursuance of his execution of a legal writ, replevin will not lie to recover it.75 4. Court cannot hold DENR officials in Contempt for Failure to follow Replevin Order; Duty of Sheriff executing Replevin Order

There can be no contempt against DENR officials who fail to follow a replevin order that was issued with grave abuse of discretion.76 The prudent recourse for a sheriff enforcing a writ of replevin, upon being informed that the property involved is in the custody of the DENR by virtue of administrative seizure and confiscation, is to desist from executing the warrant and to make a partial return by conveying the information to the court for further instructions.77 5. Consent to be sued needed in Replevin Suits against DENR Officials

Actions before the courts contesting custody over forest products, implements and conveyances seized and confiscated by forest officials under Pres. Decree No. 705, as amended by Exec. Order No. 277 are considered suits against the State. In implementing and enforcing Secs. 77-A and 89 of the Forestry Code, forest officers performing duties and functions within the limits of their authority represent the DENR and may not be proceeded against without the State's consent.78

B. Complaint

1. Who May File

Any real party in interest, including the government and juridical entities authorized by law, may file a civil action involving the enforcement or violation of any environmental law.79

75 Factoran v. Court of Appeals, supra note 52; Calub v. Court of Appeals, G.R. No. 115634, April 27, 2000, 331 SCRA 55; Mamanteo, et. al. v. Deputy Sheriff Magumun, A.M. No. P-98-1264, July 28, 1999, 331 SCRA 55. 76 Factoran v. Court of Appeals, supra note 52. 77 Mamanteo, et. al. v. Deputy Sheriff Magumun, supra note 75; Calub v. Court of Appeals, supra note 75. 78 Calub v. Court of Appeals, supra note 75. 79 RULES OF PROCEDURE FOR ENVIRONMENTAL CASES, Rule 2, Sec. 4.


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2. Verified Complaint

The complaint shall be verified and contain the names of the parties, their addresses, the cause of action, and the reliefs prayed for.80 3. Evidence to be attached to the Complaint; Form of Affidavits

The plaintiff shall attach to the verified complaint all evidence proving or supporting the cause of action consisting of the affidavits of witnesses, documentary evidence and, if possible, object evidence. The affidavits shall be in question and answer form and shall comply with the rules of admissibility of evidence.81 4. Other Requirements

The complaint shall state that it is an environmental case and the law involved. The complaint shall also include a certification against forum shopping. If the complaint is not an environmental complaint, the presiding judge shall refer it to the executive judge for re-raffle.82 5. Filing Fees

The payment of filing and other legal fees by the plaintiff shall be

deferred until after judgment unless the plaintiff is allowed to litigate as an indigent. It shall constitute a first lien on the judgment award.83 6. Assignment by Raffle

If there is only one (1) designated branch in a multiple-sala court, the executive judge shall immediately refer the case to said branch. If there are two (2) or more designated branches, the executive judge shall conduct a special raffle on the day the complaint is filed.84 7. Agency Concerned to be Furnished Complaint

Upon the filing of the complaint in environmental cases, the plaintiff is required to furnish the government or the appropriate agency, although not a party, a copy of the complaint. Proof of service upon the government or the appropriate agency shall be attached to the complaint.85

80 Id., Sec. 3. 81 Id. 82 Id. 83 Id., Sec. 12. 84 Id., Sec. 7. 85 Id., Sec. 6.


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C. Environmental Protection Order

1. Definition

Environmental protection order (EPO) refers to an order issued by the

court directing or enjoining any person or government agency to perform or desist from performing an act in order to protect, preserve or rehabilitate the environment.86

2. 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 Temporary Environmental Protection Order (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.87

The issuance of a TEPO may also be prayed for in a petition for the writ of kalikasan.88 It may also be granted in a petition for the writ of continuing mandamus.89 3. Monitoring, Lifting, Exemption from Bond Requirement, and Conversion to Permanent EPO

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.90

The grounds for motion to dissolve a TEPO shall be supported by affidavits of the party or person enjoined which the applicant may oppose, also by affidavits. The TEPO may be dissolved if it appears after hearing that its issuance or continuance would cause irreparable damage to the party or person enjoined, while the applicant may be fully compensated for

86 Id., Rule 1, Sec. 3. 87 Id., Rule 2, Sec. 8. 88 Id., Rule 7, Sec. 2. 89 Id., Rule 8, Sec. 5. 90 Id., Rule 2, Sec. 8.


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such damages as he may suffer and subject to the posting of a sufficient bond by the party or person enjoined.91

In the judgment, the court may convert the TEPO to a permanent EPO.92 4. Report to the Supreme Court

The judge shall report any action taken on a TEPO, EPO, TRO or a preliminary injunction, including its modification and dissolution, to the Supreme Court, through the Office of the Court Administrator, within ten (10) days from the action taken.93 5. Prohibition against Injunction

Except the Supreme Court, no court can issue a TRO or writ of preliminary injunction against lawful actions of government agencies that enforce environmental laws or prevent violations thereof.94

D. Summons and Court Processes

1. Who may Effect Service

The summons, orders, and other court processes may be served by the sheriff, his deputy or other proper court officer, or for justifiable reasons, by the counsel or representative of the plaintiff or any suitable person authorized or deputized by the court issuing the summons. Any private person who is authorized or deputized by the court to serve summons, orders, and other court processes shall, for that purpose, be considered an officer of the court.95

2. Service of Summons; How Effected

The summons shall be served on the defendant, together with a copy

of an order informing all parties that they have fifteen (15) days from the filing of an answer, within which to avail of interrogatories to parties under Rule 25 of the Rules of Court and request for admission by adverse party under Rule 26, or at their discretion, make use of depositions under Rule 23 or other measures under Rules 27 and 28. Should personal and substituted service fail, summons by publication shall be allowed. In the

91 Id., Sec. 9. 92 Id., Rule 5, Sec. 3. 93 Id., Rule 2, Sec. 11. 94 Id., Sec. 10. 95 Id., Sec. 13.


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case of juridical entities, summons by publication shall be done by indicating the names of the officers or their duly authorized representatives.96

E. Answer

1. Verified Answer

Within fifteen (15) days from receipt of summons, the defendant shall file a verified answer to the complaint and serve a copy thereof on the plaintiff.97 2. Evidence to be Attached to Answer

The defendant shall attach affidavits of witnesses, reports, studies of

experts, and all evidence in support of the defense.98 3. Defenses and Claims

Affirmative and special defenses not pleaded shall be deemed waived,

except lack of jurisdiction. Cross-claims and compulsory counterclaims not asserted shall be considered barred. The answer to counterclaims or cross-claims shall be filed and served within ten (10) days from service of the answer in which they are pleaded.99 4. Failure to Answer

Should the defendant fail to answer the complaint within the period provided, the court shall declare defendant in default and upon motion of the plaintiff, shall receive evidence ex parte and render judgment based thereon and the reliefs prayed for.100

F. Pleadings Allowed and Prohibited

1. Allowed Pleadings and Motions

The pleadings and motions that may be filed are complaint, answer which may include compulsory counterclaim and cross-claim, motion for

96 Id. 97 Id., Sec. 14. 98 Id. 99 Id. 100 Id., Sec. 15.


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intervention, motion for discovery and motion for reconsideration of the judgment.101

Motion for postponement, motion for new trial, and petition for relief from judgment shall be allowed in highly meritorious cases or to prevent a manifest miscarriage of justice.102 2. Prohibited Pleadings and Motions

1) Motion to dismiss the complaint; 2) Motion for a bill of particulars; 3) Motion for extension of time to file pleadings, except to file answer,

the extension not to exceed fifteen (15) days; 4) Motion to declare the defendant in default; 5) Reply and rejoinder; and 6) Third party complaint.103

G. Environmental Class Actions

1. Right to Balanced and Healthful Ecology is an Actionable Right

An action for the revocation of all timber licenses on the ground of the violation of the right to a balanced and healthful ecology may be brought as a class action suit and by parties representing future generations on the principle of inter-generational responsibility. The constitutional right to a balanced and healthful ecology constitutes an actionable right as basis for a cause of action. A denial or violation of that right by the other who has the correlative duty or obligation to respect or protect the same gives rise to a cause of action.104

As a constitutionally guaranteed right of every person, it carries the correlative duty of non-impairment. This is but in consonance with the declared policy of the state "to protect and promote the right to health of the people and instill health consciousness among them."105 This right implies, among other things, the judicious management and conservation of the countrys resources, which duty is reposed in the DENR.106

101 Id., Sec. 1. 102 Id. 103 Id., Sec. 2. 104 Oposa v. Factoran, supra note 66. 105 Laguna Lake Development Authority v. Court of Appeals, G.R. No. 110120, March 16, 1994, 231 SCRA 292. 106 Province of Rizal v. Executive Secretary, G.R. No. 129546, December 13, 2005, 477 SCRA 436.


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The right to a balanced and healthful ecology need not even be in the Constitution for it is assumed to exist from the inception of mankind and it is an issue of transcendental importance with intergenerational implications. The State cannot escape its obligation to future generations of Filipinos to keep the waters clean and clear as humanly possible.107 2. Class Action in Representation of Future Generations Allowed under the Principle of Inter-Generational Responsibility

The personality to sue on behalf of succeeding generations is based on the concept of intergenerational responsibility insofar as the right to a balanced and healthful ecology is concerned. Such a right 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. Every generation has a responsibility to the next to preserve the rhythm and harmony of nature for the full enjoyment of a balanced and healthful ecology. The minors' assertion of their right to a sound environment constitutes the performance of their obligation to ensure the protection of that right for the generations to come.108 3. Real Parties in Interest and Legal Standing Distinguished; Legal Standing Sufficient in Constitutional Questions Involving Public Interest

A farmers and indigenous peoples cooperative organized under Philippine laws representing a community actually affected by the mining activities, members of said cooperative, as well as other residents of areas also affected by mining activities, have standing to raise the constitutionality of a questioned FTAA by alleging a personal and substantial injury. When a case involves constitutional questions, the courts are not concerned with whether petitioners are real parties in interest, but with whether they have legal standing. Because of its constitutional and public policy underpinnings, standing is very different from questions relating to whether a particular plaintiff is the real party in interest or has capacity to sue. Standing is a special concern in constitutional law because, in some cases, suits are brought not by parties who have been personally injured by the operation of a law or by official action taken, but by concerned citizens, taxpayers or voters who actually sue in the public interest. Hence, the question in standing is whether such parties have "alleged such a personal stake in the outcome of the

107 Metropolitan Manila Development Authority v. Concerned Residents of Manila Bay, G.R. Nos. 171947-48, December 18, 2008, 524 SCRA 661. 108 Oposa v. Factoran, supra note 66.


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controversy as to assure that concrete adverseness which sharpens the presentation of issues upon which the court so largely depends for illumination of difficult constitutional questions.109

H. Citizen Suit

1. Who May File

Any Filipino citizen in representation of others, including minors or generations yet unborn, may file an action to enforce rights or obligations under environmental laws.110 2. Order to Intervene; Publication

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.111 3. Citizen Suits under Specific Laws

Citizen suits filed under Rep. Act No. 8749 (Clean Air Act) and Rep. Act No. 9003 (Solid Waste Management Act) shall be governed by their respective provisions.112 4. Deferment on Filing and Legal Fees

The court shall defer the payment of filing and other legal fees until after judgment that shall serve as first lien on the judgment award.113 5. Relief in 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 attorneys 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.114

109 La Bugal-Blaan Tribal Association v. Ramos, G.R. No. 127882, January 27, 2004, 421 SCRA 148. 110 RULES OF PROCEDURE FOR ENVIRONMENTAL CASES, Rule 2, Sec. 5. 111 Id. 112 Id. 113 Id., Sec. 12. 114 Id., Rule 5, Sec. 1.


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6. Citizen Suits under the Clean Air Act (Rep. Act No. 8749) and the Solid Waste Management Act (Rep. Act No. 9003)

Any citizen may file an appropriate civil, criminal or administrative action in the proper courts against:

1) Any person who violates or fails to comply with the provisions of the

Act or its implementing rules and regulations; 2) The Department or other implementing agencies with respect to

orders, rules and regulations issued inconsistent with the Act; and 3) Any public officer who willfully or grossly neglects the performance

of an act specifically enjoined as a duty under the 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 the Act or its implementing rules and regulations. No suit can be filed until a thirty-day (30) notice has been taken thereon.

The court shall exempt such action from the payment of filing fees,

except fees for actions not capable of pecuniary estimations, and shall likewise, upon prima facie showing of the non-enforcement or violation complained of, exempt the plaintiff from the filing of an injunction bond for the issuance of a preliminary injunction.115

Within thirty (30) days, the court shall make a determination if the

complaint is malicious and/or baseless and shall accordingly dismiss the action and award attorneys fees and damages.116 7. Citizen Suit to Enforce Right to Clean Air

Petitioners in a citizen suit to enforce their fundamental legal right to clean air have legal standing in a petition for mandamus brought against the State. A partys standing is a procedural technicality which may be set aside, in view of the importance of the issue raised, if it involves one of transcendental importance to the public. The right to clean air is an issue of paramount importance and is impressed with public interest. The consequences of the counter-productive and retrogressive effects of a neglected environment due to emissions of motor vehicles immeasurably affect the well-being of the public.117

115 Rep. Act No. 8749 [1999], Sec. 41; Rep. Act No. 9003 [2001], Sec. 52. 116 Id. 117 Henares v. Land Transportation Franchising and Regulatory Board, GR No. 158290, October 23, 2006, 505 SCRA 104. This case, however, was dismissed as the relief sought for, requiring the use of natural gas in public utility vehicles, is not covered under the law and, hence, not subject to mandamus. Although dismissed, the case took note of the legal standing of the petitioners.


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I. Pre-Trial

1. Notice and Schedule

Within two (2) days from the filing of the answer to the counterclaim or cross-claim, if any, the branch clerk of court shall issue a notice of pre-trial to be held not later than one (1) month from the filing of the last pleading. The court shall schedule the pre-trial and set as many pre-trial conferences as may be necessary within a period of two (2) months, counted from the date of the first pre-trial conference.118 2. Pre-trial Brief

At least three (3) days before the pretrial, the parties shall submit pre-trial briefs containing the following:

1) A statement of their willingness to enter into an amicable

settlement, indicating the desired terms thereof or to submit the case to any of the alternative modes of dispute resolution;

2) A summary of admitted facts and proposed stipulation of facts; 3) The legal and factual issues to be tried or resolved. For each

factual issue, the parties shall state all evidence to support their positions thereon. For each legal issue, the parties shall state the applicable law and jurisprudence supporting their respective positions thereon;

4) The documents or exhibits to be presented, including depositions, answers to interrogatories and answers to written request for admission by adverse party, stating the purpose thereof;

5) A manifestation of their having availed of discovery procedures or their intention to avail themselves of referral to a commissioner or panel of experts;

6) The number and names of the witnesses and the substance of their affidavits;

7) Clarificatory questions from the parties; and 8) List of cases arising out of the same facts pending before other

courts or administrative agencies.119 3. Effect of Failure to Comply or File Brief

Failure to comply with the required contents of a pre-trial brief may be a ground for contempt. Failure to file the pre-trial brief shall have the same effect as failure to appear at the pre-trial.120

118 RULES OF COURT FOR ENVIRONMENTAL CASES, Rule 3, Sec. 1. 119 Id., Sec. 2. 120 Id.


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4. 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.121

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.122 5. 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:

1) To assist the parties in reaching a settlement; 2) To mark the documents or exhibits to be presented by the parties

and copies thereof to be attached to the records after comparison with the originals;

3) To ascertain from the parties the undisputed facts and admissions on the genuineness and due execution of the documents marked as exhibits;

4) To require the parties to submit the depositions taken under Rule 23 of the Rules of Court, the answers to written interrogatories under Rule 25, and the answers to request for admissions by the adverse party under Rule 26;

5) To require the production of documents or things requested by a party under Rule 27 and the results of the physical and mental examination of persons under Rule 28;

6) To consider such other matters as may aid in its prompt disposition; 7) To record the proceedings in the Minutes of Preliminary

Conference to be signed by both parties or their counsels; 8) To mark the affidavits of witnesses, which shall be in question and

answer form, and shall constitute the direct examination of the witnesses; and

9) To attach the minutes, together with the marked exhibits before the pre-trial proper.123

121 Id., Sec. 3. 122 Id. 123 Id., Sec. 4.


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The parties or their counsel must submit to the branch clerk of court

the names, addresses and contact numbers of the affiants.124

During the preliminary conference, the branch clerk of court shall also require the parties to submit the depositions taken under Rule 23 of the Rules of Court, the answers to written interrogatories under Rule 25 and the answers to request for admissions by the adverse party under Rule 26. The branch clerk of court may also require the production of documents or things requested by a party under Rule 27 and the results of the physical and mental examination of persons under Rule 28.125 The judge shall put the parties and their counsels under oath, and they shall remain under oath in all pre-trial conferences.126 6. Failure to present Evidence

Evidence not presented during the pre-trial, except newly-discovered evidence, shall be deemed waived.127 7. How Conducted

The court shall endeavor to make the parties agree to compromise or settle in accordance with law at any stage of the proceedings before rendition of judgment.128

If there is no full settlement, the judge shall:

1) Adopt the minutes of the preliminary conference as part of the pre-trial proceedings and confirm the markings of exhibits or substituted photocopies and admissions on the genuineness and due execution of documents;

2) Determine if there are cases arising out of the same facts pending before other courts and order its consolidation, if warranted;

3) Determine if the pleadings are in order and, if not, order the amendments if necessary;

4) Determine if interlocutory issues are involved and resolve the same;

5) Consider the adding or dropping of parties; 6) Scrutinize every single allegation of the complaint, answer and

other pleadings and attachments thereto, and the contents of

124 Id. 125 Id. 126 Id., Sec. 5. 127 Id. 128 Id., Sec. 10.


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documents and all other evidence identified and pre-marked during pre-trial in determining further admissions;

7) Obtain admissions based on the affidavits of witnesses and evidence attached to the pleadings or submitted during pre-trial;

8) Define and simplify the factual and legal issues arising from the pleadings and evidence. Uncontroverted issues and frivolous claims or defenses should be eliminated;

9) Discuss the propriety of rendering a summary judgment or a judgment based on the pleadings, evidence, and admissions made during pre-trial;

10) Observe the Most Important Witness Rule in limiting the number of witnesses, determining the facts to be proved by each witness, and fixing the approximate number of hours per witness;

11) Encourage referral of the case to a trial by commissioner under Rule 32 of the Rules of Court or to a mediator or arbitrator, under any of the alternative modes of dispute resolution governed by the Special Rules of Court on Alternative Dispute Resolution;

12) Determine the necessity of engaging the services of a qualified expert as a friend of the court (amicus curiae); and

13) Ask parties to agree on the specific trial dates for continuous trial, comply with the one-day examination of witness rule, adhere to the case flow chart determined by the court, which shall contain the different stages of the proceedings up to the promulgation of the decision, and use the time frame for each stage in setting the trial dates.129

8. Effect of Plaintiffs and Defendants Failure to Appear at Pre-Trial Distinguished

The court shall not dismiss the complaint, except upon repeated and unjustified failure of the plaintiff to appear. The dismissal shall be without prejudice, and the court may proceed with the counterclaim. If the defendant fails to appear at the pre-trial, the court shall receive evidence ex parte.130 9. Minutes

The minutes of each pre-trial conference shall contain matters taken up therein, more particularly admissions of facts and exhibits, and shall be signed by the parties and their counsel.131

129 Id., Sec. 6. 130 Id., Sec. 7. 131 Id., Sec. 8.


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10. Pre-Trial Order

Within ten (10) days after the termination of the pre-trial, the court shall issue a pre-trial order setting forth the actions taken during the pre-trial conference, the facts stipulated, the admissions made, the evidence marked, the number of witnesses to be presented, and the schedule of trial. Said order shall bind the parties, limit the trial to matters not disposed of, and control the course of action during the trial.132

J. Consent Decree

1. Definition

Consent decree refers to a judicially-approved settlement between concerned parties based on public interest and public policy to protect and preserve the environment.133 2. Application during Pre-Trial

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.134

K. Trial

1. Continuous Trial

The judge shall conduct continuous trial which shall not exceed two (2) months from the date of the issuance of the pre-trial order. Before the expiration of the two-month period, the judge may ask the Supreme Court for the extension of the trial period for justifiable cause.135 2. Affidavits in Direct Examination

In lieu of direct examination, affidavits marked during the pre-trial shall be presented as direct examination of affiants, subject to cross-examination by the adverse party.136

132 Id., Sec. 9. 133 Id., Rule 1, Sec. 4 (b). 134 Id., Rule 3, Sec. 5; See Chapter on Mediation. 135 Id., Rule 4, Sec. 1. 136 Id., Sec. 2.


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3. One-Day Examination of Witness; Only Oral Offer of Evidence is Allowed

The court shall strictly adhere to the rule that a witness has to be fully examined in one (1) day, subject to the courts discretion of extending the examination for justifiable reason. After the presentation of the last witness, only oral offer of evidence shall be allowed, and the opposing party shall immediately interpose his objections. The judge shall forthwith rule on the offer of evidence in open court.137 4. Submission for Resolution; Memoranda After the last party has rested its case, the court shall issue an order submitting the case for decision. The court may require the parties to submit their respective memoranda, if possible in electronic form, within a non-extendible period of thirty

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