The Philippines: A Hamstrung Commission

Asian NGOs Network on National Human Rights Institutions

I. INTRODUCTION
The Commission on Human Rights of the Philippines (CHRP) marked its !
th
"ear as an
independent #onstitutional $od"
%
on & 'a" !!()

Prior to its #reation* President Cora+on C

A,uino had #onstituted the Presidential Committee on Human Rights (PCHR)
-
upon assuming
offi#e in .e$ruar" %/01 to look into the human rights situation) 2uring the 'ar#os di#tatorial
regime* the prote#tion and promotion of human rights was largel" a #i3il so#iet" affair* with non4
go3ernmental organi+ations (NGOs)* people5s organi+ations* religious groups and other #i3i#
organi+ations at the helm)
The esta$lishment of an independent $od" on human rights was en3isioned as
mainstreaming human rights issues and $ridging the di3ide $etween the go3ernment and
mem$ers of the #i3il so#iet") Prose#ution of human rights 3iolations remains with the 2epartment
of 6usti#e* and human rights #ases are de#ided $" the #ourts of 7usti#e)
After initial pu$li# euphoria* tension and antagonism marred the CHRP5s relationship
with $oth go3ernment agents and NGOs) On the one hand* the CHRP was a##used of taking up
the #udgels of the per#ei3ed enemies of the state) On the other hand* it was #riti#i+ed for $eing
too modest in its assessment of the human rights situation)
Toda"* the hostilit" has somewhat fi++led out) Howe3er* the Commission has not full"
de3eloped a fun#tional relationship with NGOs) 'oreo3er* it has not mat#hed the sophisti#ation
of most human rights organi+ations in terms of resear#h* training and monitoring of #ases) Thus*
instead of $eing in the forefront of human rights prote#tion and promotion* the Commission
#onstantl" lags $ehind)
It has slowl" gained the #o4operation of go3ernment agen#ies) Howe3er* it has remained
an oddit" in the general s#heme of go3ernment power stru#tures) 8hile an independent
#onstitutional $od"* the CHRP fun#tions more like an ad7un#t offi#e of the 9:e#uti3e) This
#onfusion o3er its role is further #ompli#ated $" the #reation of the PHRC
;
under the Offi#e of the
President* with no less than the CHRP Chairperson5s daughter as 9:e#uti3e 2ire#tor of the
<e#retariat)
&

The CHRP5s operation has $een #onstantl" hampered $" its meagre $udget= most of its
programmes are funded $" grants and donations) 8hile its fis#al inade,ua#" is a 3alid #on#ern*
the Commission has $een remiss e3en in its #onstitutional duties whi#h re,uire little or no e:tra
$udgetar" allo#ations) Indeed* there is nothing on re#ord that indi#ates that the CHRP has e3er
used its #ontempt powers to #ompel the attendan#e of high pu$li# offi#ials in its in3estigations) It
has not used its power to grant immunit" to witnesses who ma" $e 3ital in shedding light on #ases
%
%/0( Phil) Const)* Art) >III* <e#tion %((%))

The Commission on Human Rights was formall" organi+ed with the issuan#e of 9:e#uti3e Order No %1-
on & 'a" & %/0()
-
Created under 9:e#) Order No 0 issued on %0 'ar#h %/01)
;
Re#onstituted $" Administrati3e Order No / issued $" President Gloria 'a#apagal4Arro"o on (
6anuar" !!)
&
The present #urrent Chairperson of the CHRP is 2r Purifi#a#ion C ?era @uisum$ing while PHRC5s
9:e#uti3e 2ire#tor of the <e#retariat is Anderse#retar" Ce#ilia Ra#hel ? @uisum$ing)
%
%
under in3estigation) <a3e for its position papers on some issues* the CHRP has not su$stantiall"
produ#ed a#ademi# resear#h to guide poli#" makers* students and #i3il so#iet" groups on re#ent
trends on human rights) Thus far* the CHRP has "et to propose legislation to Congress to further
prote#t and promote human rights)
.inall"* the Commission has $een #onstantl" hounded $" ,uestions a$out its
independen#e and #ompeten#e* espe#iall" with the appointment of Commissioners who do not
ha3e ade,uate e:perien#e in human rights ad3o#a#") Now in its %
st
"ear* the CHRP is #onfronted
with gra3e issues that test its #apa#it" to fulfil its #onstitutionall" mandated duties independentl"
and effi#ientl")
i) 9:tra47udi#ial killings and enfor#ed disappearan#es
<u#h reports figured prominentl" in !!1 and !!(* prompting the <upreme Court* under
Chief 6usti#e Re"nato < Puno* to designate // Regional Trial Courts to hear* tr" and
de#ide #ases in3ol3ing killings of politi#al a#ti3ists and mem$ers of media)
1
The #ourt
followed this initiati3e $" spearheading a National Consultati3e <ummit on 9:tra4
6udi#ial Billings and 9nfor#ed 2isappearan#es
(
with parti#ipation from 3arious
stakeholders)
8hile figures 3ar"*
0
there is #onsensus that #ases of e:tra47udi#ial killings and enfor#ed
disappearan#es ha3e risen to an alarming e:tent) 'ost 3i#tims of e:tra47udi#ial killings
are politi#al a#ti3ists* mem$ers of #ause4oriented groups* media pra#titioners and
religious leaders)
/

At least three independent $odies apart from the CHRP #onfirm the rising in#iden#e of
e:tra47udi#ial killings and enfor#ed disappearan#es) These in#lude the 'elo
Commission
%!
#reated $" President Gloria 'a#apagal4Arro"o to in3estigate reports of
killings of media pra#titioners and a#ti3ists= the International .ederation of Human
Rights (.I2H)=
%%
and the Anited Nations <pe#ial Rapporteur on 9:tra46udi#ial Billings)
%
8hile the 'elo Commission did not find an" dire#t e3iden#e linking the militar" to the
killings* it #onfirmed suspi#ion that the militar" is somehow in3ol3ed in the spate of
politi#al killings) A##ording to its Report* Cthere is #ertainl" e3iden#e pointing the finger
of suspi#ion at some elements and personalities in the armed for#es* in parti#ular General
1
<C Admin) Order No &4!!(* % 'ar#h !!()
(
Held on %14%( 6ul" !!( at the Centennial Hall* The 'anila Hotel)
0
A##ording to the Report of the 'elo Commission* Task .or#e Asig of the Philippine National Poli#e
listed %-1 killings= Amnest" International mentions ;; 3i#tims= while Barapatan is said to ha3e #ounted at
least (; killings) The CHRP re#orded %%/ #ases of e:tra7udi#ial killings in !!1)
/
See !!1 CHRP Annual A##omplishment Report) A##ording to the 'elo Commission Report* the
ma7orit" of politi#al a#ti3ists killed were mem$ers of Da"an 'una* Anakpawis* Dagong Al"ansang
'aka$a"an* Barapatan and BP2 (Bilusan para sa Pam$ansang 2emokras"a)) Other #i3ilian 3i#tims $elong
to #ause4oriented working for agrarian reform and other so#ial 7usti#e issues su#h as Task .or#e 'apalad
and ANORBA (Agna"an ng mga Nagsasariling Organisas"on sa Bana"unan))
%!
Created $" Administrati3e Order No %&( issued $" President Gloria 'a#apagal Arro"o on % August
!!1)
%%
9le#troni# #op" of the Report of the International .ederation of Human Rights ma" $e a##essed at
EhttpFGGwww)fidh)orgGI'GGpdfGphilippines4mission)pdfH
%
9le#troni# #op" of the Press <tatement of 'r Philip Alston* AN <pe#ial Rapporteur on 9:tra 6udi#ial
Billings ma" $e a##essed at EhttpFGGwww)e:tra7udi#iale:e#utions)orgGnewsGPhilippinesI%I.e$I!!()pdfH

Rodolfo Palparan* as responsi$le for an undetermined num$er of killings* $" allowing*

tolerating* and e3en en#ouraging the killingsJ)
%-
Other #ases of e:tra47udi#ial killings in3ol3ed farmers= suspe#ted perpetrators in#lude
landowners and those opposed to the implementation of land reform)
%;
The 'elo
Commission found that killings of media personnel are Cmore or less attri$uta$le to
reprisals for the 3i#tims5 exposs or other media pra#ti#esJ)
%&

ii) Torture of prisoners* detainees and suspe#ts
There was also an in#rease in do#umented #ases of torture of prisoners* detainees and
suspe#ts)
%1
Re#ent #ases in#luded that of the 'analo $rothers (Ra"mond and Re"naldo)
of <an Idelfonso Dula#an who were reported missing on %; .e$ruar" !!1) The duo
surfa#ed after es#aping from their #aptors on %- August !!() In a 3ideo re#ording*
Ra"mond re#ounted their ordeal of non4stop torture at the hands of alleged militar" and
paramilitar" a$du#tors)
%(
The .I2H* whi#h #ondu#ted an international fa#t4finding mission
%0
to assess the human
rights situation in the Philippines* has found that the Cthe pra#ti#e of torture and ill
treatment is widel" used against people suspe#ted of $eing Kterrorists5)J A##ording to the
preliminar" findings* most #ases of torture o##ur during the in3estigation period when the
3i#tims are Carrested without a warrant and with no e:planation* $lindfolded and
hand#uffed $efore $eing $rought to a militar" #amp or a se#ret lo#ation* where the" are
for#ed to admit that the" are mem$ers of Kterrorist groups5 like the Abu Sayyaf Group or
the New People5s Arm")J)
%/
iii) Right to information
The people5s right to information was one of the most threatened rights during the period
under re3iew* in light of the man" shadow" dealings and #ontra#ts entered into $" the
go3ernment) ?ital information has $een $eing withheld from pu$li# s#rutin") One
,uestiona$le #ontra#t in3ol3ed the National Droad$and Network pro7e#t whi#h the
go3ernment signed with the Chinese firm LT9 Corporation) Copies of the #ontra#t were
allegedl" stolen from a hotel room in China a da" after it was signed)
!
In an attempt to
keep the pu$li# in the dark* it was #laimed that the #ontra#t #ontained #onfidentialit"
pro3isions whi#h $ar pu$li# dis#losure of its #ontents)
Amidst allegations of o3erpri#ing* $ri$er" and ki#k$a#ks* pu$li# offi#ials who had a hand
in the preparation and appro3al of the #ontra#t refused to su$mit themsel3es to
Congressional in,uir") The" in3oked an 9:e#uti3e Order
%
whi#h has pre3iousl" $een
%-
Report of the 'elo Commission* p) &-)
%;
Id.* p) &%)
%&
Ibid)
%1
See !!1 CHRP Annual A##omplishment Report* pp) 4-)
%(
Allison Mope+* CTorture 3i#tim re#alls ordeal in militar" hand*J
EhttpFGGnewsinfo)in,uirer)netG$reakingnewsGnationG3iewIarti#le)phpNarti#leIidO00!;;H
%0
9le#troni# #op" of the report ma" $e found at EhttpFGGwww)fidh)orgGI'GGpdfGphilippines4mission)pdfH
%/
Id.
!
President Arro"o witnessed the signing of the #ontra#t in China on % April !!() The ne:t da"* #opies of
the signed #ontra#t were reported missing)
%
9:e#uti3e Order No ;1; issued $" President Arro"o on 1 <eptem$er !!&)
-
-
de#lared un#onstitutional $" the <upreme Court)

The #ourt has sin#e issued a Temporar"

Restraining Order on implementation of the #ontra#t* pending resolution of the main
petitions seeking its in3alidation)
-

The #ourts ha3e thus far also shown great #on#ern in upholding the right to information
in matters of pu$li# interest) .or instan#e* the High Court granted the re,uest of the
Kapisanan ng mga Brodkaster ng Pilipinas for Kli3e5 #o3erage of the promulgation of the
de#ision in #ases against former President 6oseph 97er#ito 9strada)
;

In #ontrast* the CHRP has not taken a position on either issue* despite the o$3ious
impli#ations for the people5s right to information)
i3) Right to pri3a#"
Pri3a#" issues resurfa#ed in !!( with the re3i3al of wire4tapping in3estigations
allegedl" in3ol3ing President Arro"o and a former mem$er of the Commission on
9le#tions* Virgilio Gar#illano* in relation to the !!; Presidential 9le#tions)
De"ond the politi#al impli#ations of the #ontents of the allegedl" wire4tapped
#on3ersations* one largel" une:plored area was the real threat posed $" the una$ashed
use of modern te#hnolog" to 3iolate an indi3idual5s pri3a#") At the height of the
#ampaign for the 'a" !!( ele#tions* tapping de3i#es were dis#o3ered on former
president A,uino5s telephone line)
&
Pet again* the CHRP was silent)

3) The Human <e#urit" A#t
The %-
th
Congress ena#ted Rep) A#t No /-(* otherwise known as KThe Human <e#urit"
A#t5* in response to the #all for a glo$al war on terrorism) The law* among others defines
and punishes the #rime of terrorism
1
and #onspira#" to #ommit terrorism)
(
<u$7e#t to
#ertain limitations* the law allows sur3eillan#e o3er suspe#ts and inter#eption and
re#ording of #ommuni#ations*
0
the e:amination of $ank deposits* a##ounts and re#ords*
/
restri#tion on tra3el*
-!
and detention of suspe#ts for an e:tended period)
-%

The CHRP has a parado:i#al role in this anti4terrorism initiati3e) On the one hand* it
ser3es as a prote#tor of human rights* as it is tasked to prose#ute 3iolations of #i3il and
politi#al rights whi#h ma" ha3e $een 3iolated in relation to implementation of the Human
<e#urit" A#t)
-
On the other hand* it is pla#ed in the position where it ma" potentiall" $e a
3iolator of human rights* as its regional offi#ials are gi3en the power to issue written

In Da"an 'una 3) 9:e#uti3e <e#retar" 9rmita* G)R) No G)R) No %1/0-0* & April !!1)
-
'in) Resolution* G)R) No %(/-%(* Amsterdam Holdings* In#) 3) 2OTC= G)R) No %(00-!* <upli#o 3)
N92A* %% <eptem$er !!()
;
A)') No !(4/4!04<C* %% <eptem$er !!()
&
httpFGGwww)in,uirer)netGspe#ialreportsGhellogar#iG3iew)phpNd$O%Qarti#leO!!(!&!;41-/0(
1
Rep) A#t No /-(* <e#tion -)
(
Id., <e#tion ;)
0
Id., <e#tion ()
/
Id., <e#tion 0)
-!
Id.* <e#tion 1)
-%
Id.* <e#tion %/)
-
Id., <e#tion &&)
;
;
appro3al for the prolonged detention of suspe#ts Cin the e3ent of an a#tual or imminent
terrorist atta#kJ)
--

Criti#s #onsider the Human <e#urit" A#t as the single $iggest legislati3e threat to human
rights) This is due to alleged 3agueness in the definition of the #rime of terrorism* and the
#hilling effe#t of its pro3isions) <e3eral petitions seeking the in3alidation of the law ha3e
sin#e $een filed with the <upreme Court)
3i) Right to suffrage
A ma7or #hallenge during the period under re3iew was the #ondu#t of fair* #redi$le and
pea#eful ele#tions) 8ith the #ountr"5s long histor" of ele#tion fraud* terrorism* 3ote4
$u"ing and $allot4snat#hing* the CHRP* for the first time* a#ti3el" parti#ipated in 3oter
edu#ation) It issued an ad3isor" on KRight to <uffrage R ?oter 9du#ation5 and entered into
a 'emorandum of Agreement respe#ti3el" with the Megal Network for the Truthful
9le#tions and the Philippine Institute of Authenti#all" Humanist <o#iet") Together with
the Catholi# Dishops Conferen#e of the Philippines* the CHRP signed a #o3enant with
go3ernment agen#ies and NGOs for honest* orderl" and pea#eful ele#tions)
Notwithstanding these efforts* fraud still marred the 'a" !!( ele#tions* parti#ularl" in
the southern part of the ar#hipelago R proof that greater efforts are needed to ensure that
the #olle#ti3e #hoi#e of 3oters pre3ails o3er the #apri#es of #ertain groups and
indi3iduals)
II. INDEPENDENCE
1. General observations
The CHRP la#ks the hallmarks of independen#e en7o"ed $" the other #onstitutional
#ommissions) .or instan#e* the offi#ers of other #onstitutional #ommissions
-;
are appointed on
staggered $asis
-&
to ensure #ontinuit" of poli#ies* and to make it unlikel" that all mem$ers are
appointed $" the same President at an" one time)
-1
In #ontrast* the Chairperson and the four
Commissioners of the CHRP are appointed simultaneousl")
-(
Offi#ers of other #onstitutional #ommissions are remo3a$le onl" $" impea#hment on
grounds spe#ifi#all" pro3ided $" the Constitution*
-0
while the Chairperson and the Commissioner
--
Id., <e#tion %/)
-;
<u#h as the Ci3il <er3i#e Commission* the Commission on Audit and the Commission on 9le#tions)
-&
<ee for instan#e Art) I>4D* <e#tion on the appointment of the Commissioners of the Ci3il <er3i#e
CommissionF CThe Chairman and the Commissioners shall $e appointed $" the President with the #onsent
of the Commission on Appointments for a term of se3en "ears without reappointment) Of those first
appointed* the Chairman shall hold offi#e for se3en "ears* a Commissioner for fi3e "ears* and another for
three "ears* without reappointment) Appointment to an" 3a#an#" shall $e onl" for the une:pired term of the
prede#essor) In no #ase shall an" mem$er $e appointed or designated in temporar" or a#ting #apa#it")J The
same pro3isions* e:#ept for the num$er of Commissioners* appear in Art) I>4C* <e#tion on the
appointment of the mem$ers of the Commission on 9le#tions* and Art) >I42* <e#tion on the appointment
of the mem$ers of the Commission on Audit)
-1
Dernas* The %/0( Constitution of the Repu$li# of the PhilippinesF A Commentar" (%//1 ed))* p) //)
-(
9:e#uti3e Order No %1-* <e#tion )
-0
%/0( Phil) Const)* Art) >I* <e#tion ) CThe President* the ?i#e President* the mem$ers of the <upreme
Court* the mem$ers of the Constitutional Commissions* and the Om$udsman ma" $e remo3ed from offi#e
on impea#hment for* and #on3i#tion of* #ulpa$le 3iolation of the Constitution* treason* $ri$er"* graft and
&
&
of the CHRP ma" $e remo3ed from offi#e as ma" $e pro3ided $" law* $ut not through
impea#hment)
-/
Compared to the more e:pansi3e fis#al autonom" en7o"ed $" the other #onstitutional
#ommissions* the CHRP has Climited fis#al autonom"J)
;!
The other $odies en7o" full
independen#e in terms of $udget preparation and implementation= fle:i$ilit" in fund utili+ation of
appro3ed appropriations= and use of sa3ings and disposition of re#eipts) In #ontrast* the CHRP5s
autonom" is limited to the automati# release of its $udget=
;%
hen#e* it is su$7e#t to restri#tions*
su#h as pre4audit re,uirements)
;
In other words* its fis#al operation is sus#epti$le not onl" to
Congressional influen#e* $ut also 9:e#uti3e influen#e)
.urther dou$t has $een #ast on the Commission5s independen#e in monitoring the
go3ernment5s #omplian#e with its international o$ligations on human rights with the appointment
of Anderse#retar" Ce#ilia Ra#hel ? @uisum$ing as 9:e#uti3e 2ire#tor of the PHRC <e#retariat)
<he is the daughter of CHRP Chairperson Purifi#a#ion C ?era @uisum$ing)
The PHRC is #harged with* among others* ensuring the go3ernment5s #omplian#e with its
reporting o$ligations on international treaties to whi#h the Philippines is a <tate Part") The CHRP
is supposed to monitor Philippine #omplian#e with these treat" o$ligations) In the words of one
#riti#* the CHRP4PHRC relationship ma" $e likened to a mother monitoring her daughter5s
progress* whi#h is not e:a#tl" the epitome of independen#e)
) Legal mandate
The CHRP has $road #onstitutional powers)
i) In3estigati3e power
The prin#ipal fun#tion of the Commission is an in3estigator" one) It ma" a#t on its own*
or on the #omplaint of an" person on 3iolation of human rights in#luding #i3il and
politi#al rights)
;-
There is a 3iew that the Commission5s in3estigati3e power is limited to
3iolations of #i3il and politi#al rights)
;;
Nonetheless* Congress is allowed $" the
Constitution to e:pand CHRP 7urisdi#tion to #o3er the other aspe#ts of human rights
through appropriate legislation)
;&
Also* the power 3ested $" the Constitution in the CHRP
in monitoring go3ernment #omplian#e with its treat" o$ligations
;1
en#ompasses all
aspe#ts of human rights)
#orruption* other high #rimes* or $etra"al of pu$li# trust) All other offi#ers and emplo"ees ma" $e remo3ed
from offi#e as pro3ided $" law* $ut not $" impea#hment)J
-/
Dernas* supra.* p) //!)
;!
Commission on Human Rights 9mplo"ees Asso#iation (CHR9A) 3) Commission on Human Rights* G)R)
No %&&--1* % 6ul" !!1)
;%
Id.
;
Id.
;-
%/0( Constitution* Art) >III* <e#tion %0(%))
;;
<ee for instan#e* <imon 3) Human Rights Commission* / <CRA %%( (%//;))
;&
%/0( Constitution* Art) >III* <e#tion %/)
;1
%/0( Constitution* Art) >III* <e#tion %0(())
1
1
In aid of its in3estigati3e powers* the Commission ma" seek the assistan#e of 9:e#uti3e
offi#es for the imposition of administrati3e fines and penalties for offen#es #ommitted $"
pu$li# offi#ers)
;(

In !!1* the Commission in3estigated 0/! #ases of 3iolations* of whi#h -0 were filed or
referred for prose#ution andGor administrati3e san#tions)
;0
.or the first <emester of !!(*
the Commission re#ei3ed and do#umented ;;/ #omplaints)
;/
It has thus far resol3ed -10
#ases) Of the resol3ed #ases* %-( were filed in 3arious #ourts and agen#ies* %0 were
ar#hi3ed while the rest were #losed or terminated)
&!

ii) Rule4making power
The Commission has the power to promulgate its operational guidelines and rules of
pro#edure in the #ondu#t of its in3estigation)
&%
8hile it #annot 3iolate the Rules of Court
promulgated $" the <upreme Court* the CHRP is not stri#tl" $ound $" rules of 7udi#ial
pro#edure= it needs onl" to adopt administrati3e pro#edural norms)
&
iii) Power to #ite #ontempt
To gi3e teeth to its in3estigati3e fun#tion* the Constitution spe#ifi#all" 3ests the
Commission with power to #ite #ontempt)
&-
<o far* howe3er* the Commission has not
used this to effe#ti3el" #arr" out its duties)
i3) Re#ommendator" power
One of the #onstitutional fun#tions of the Commission is to re#ommend to Congress
effe#ti3e measures to promote human rights)
&;
This mandate presupposes a#ti3e
parti#ipation on the part of the CHRP in drafting ne#essar" legislation) Howe3er* the
CHRP has not initiated an" Dill in Congress= it merel" su$mits position papers when the
Dills are alread" filed in Congress)
3) ?isitation power
CHRP has the power to 3isit 7ails* prisons and detention fa#ilities)
&&
In !!1* it #ondu#ted
11 3isits to 3arious 7ails and detention #entres #o3ering ;-*0! detainees)
&1
.or the first
<emester of !!(* the CHRP rendered assistan#e to %1; prisonersGdetainees during its
3isits)
&(
3i) 'onitoring power
;(
%/0( Constitution* Art) >III* <e#tion %0(/))
;0
!!1 CHRP Annual A##omplishment Report* p) %)
;/
!!( CHRP Annual A##omplishment Report (.irst <emester)* p) ;) Of the #ases do#umented* ;/
in#idents of human rights 3iolations o##urred in !!( while the rest o##urred prior to !!()
&!
Id.
&%
%/0( Constitution* Art) >III* <e#tion %0())
&
III Re#ords of the Constitutional Commission (1;4(11)
&-
%/0( Constitution* Art) >III* <e#tion %0())
&;
%/0( Constitution* Art) >III* <e#tion %0(1))
&&
%/0( Constitution* Art) >III* <e#tion %0(;))
&1
!!1 CHRP Annual A##omplishment Report* p) &)
&(
!!( CHRP Annual A##omplishment Report* p)&
(
(
The CHRP is mandated to monitor the go3ernment5s #omplian#e with its treat"
o$ligations) The Commission has #alled the go3ernment5s attention to its o$ligation to
su$mit reports to treat"4$ased $odies) At present* %; su#h reports are o3erdue)
&0

3ii) Power to grant immunit"
The CHRP is gi3en the power to grant immunit" from prose#ution to an" person whose
testimon" or whose possession of do#uments or other e3iden#e is ne#essar" or
#on3enient to determine the truth in an" in3estigation #ondu#ted $" it or under its
authorit")
&/
There is no re#ord that shows that the CHRP has e3er used of this power)
3iii) Resear#h and edu#ation fun#tions
The Commission is tasked with esta$lishing a #ontinuing programme of resear#h*
edu#ation* and information to enhan#e respe#t for the prima#" of human rights)
1!
It
#ondu#ts training* seminars and workshops on 3arious human rights issues and distri$utes
pamphlets* leaflets* fl"ers* posters and other reading materials) In !!1* it #ondu#ted
%*&( information and edu#ation a#ti3ities for 0*!&& parti#ipants and distri$uted ;1*%&-
information materials)
1%

i:) Other powers
The CHRP is gi3en a $road mandate to pro3ide Cappropriate legal measures for the
prote#tion of human rights of all persons within the Philippines* as well as .ilipinos
residing a$road* and pro3ide for pre3enti3e measures and legal aid ser3i#es to the under4
pri3ileged whose human rights ha3e $een 3iolated or need prote#tionJ)
1
This in#ludes the power to issue a dire#ti3e for preser3ation of the $od" of an"one who
dies in #ustod" and to pre3ent the authorities from hiding it* or from torturing or
transferring the $od" until a #ourt order is o$tained) It also in#ludes su#h powers as
ordering that #ounsel or relati3es $e allowed to 3isit those detained* and the power to
order medi#al treatment)
1-


-) Relationship with the government
There are inherent limitations to CHRP operations due to the #onstitutional allo#ation of
powers among the different $ran#hes of go3ernment)
&0
In#luding IC9<CR se#ond periodi# re3iew (due 6une %//&)= IC9<CR third periodi# re3iew (due 6une
!!!)= IC9R2* %&
th
periodi# re3iew (due 6anuar" %//0)= IC9R2* %1
th
periodi# re3iew (due 6anuar" !!!)=
IC9R2* %(
th
periodi# re3iew (due 6anuar" !!)= IC9R2* %0
th
periodi# re3iew (due 6anuar" !!;)= IC9R2
%/
th
periodi# re3iew (due 6anuar" !!1)= CAT se#ond periodi# re3iew (due 6une %//)= CAT third periodi#
re3iew (due on 6une %//1)= CAT fourth periodi# re3iew (due 6une !!!)= CAT fifth periodi# re3iew (due
6une !!;)= Optional Proto#ol to CRC on #hildren in armed #onfli#t* initial report (due <eptem$er !!&)=
Optional Proto#ol to the CRC on the sale of #hildren initial report (due 6une !!;)= and Con3ention on the
Rights of 'igrant 8orkers* initial report (due 6ul" !!;))
&/
%/0( Constitution* Art) >III* <e#tion %0(0))
1!
%/0( Constitution* Art) >III* <e#tion %0(&))
1%
See 9:e#uti3e <ummar" of the CHRP Annual Report (!!1)* p) &)
1
%/0( Constitution* Art) >III* <e#tion %0(-))
1-
Dernas* supra.* p) %!/;)
0
0
.irstl"* the CHRP is essentiall" an in3estigati3e $od" and the results of its in3estigation
are at $est* re#ommendator" in nature) Prose#ution of #ases is lodged primaril" in the 2epartment
of 6usti#e whi#h has dis#retion whether to file a #riminal #omplaint in #ourt against an alleged
3iolator)
<e#ondl"* the Commission is neither a 7udi#ial nor a ,uasi47udi#ial $od") In real terms* its
findings on human rights 3iolations ha3e no $inding effe#t) It #annot issue warrants of in7un#tion
or restraining orders against alleged perpetrators to #ompel them to #ease and desist from
#ontinuing their a#ts)
1;
4. ele!tion"ele!tion o# Commissioners
The Chairperson and the four Commissioner of the CHRP are appointed $" the
President)
1&
There is no pu$lished pro#edure for sele#tion of the appointees= hen#e* there are no
esta$lished rules for the parti#ipation of #i3il so#iet" groups in this pro#ess) Mittle wonder then*
that the ,ualifi#ations of the Commissioners are usuall" ,uestioned) It has $een o$ser3ed that
e:#ept for the Chairperson and one Commissioner* the other mem$ers were not known to the
human rights #ommunit" prior to their appointment)
The Constitution limits the #omposition of the CHRP to natural4$orn #iti+ens) It is also
re,uired that the ma7orit" of the Commissioners must $e law"ers) This notwithstanding*
#onsidera$le leewa" is granted $" the Constitution to appoint non4law"ers) 2espite this* the
#urrent Chairperson and the four #ommissioners are all law"ers)
$. %inan!ial independen!e
The CHRP shares appro:imatel" !)%S of the national $udget) Of /%0 $illion Pesos in
!!1* the Commission had an allo#ation of !();1 million Pesos) Of the %)%1 Trillion Pesos in
!!(* the CHRP has %1);/% million)
The Commissioners work full time= the" are prohi$ited from holding an" other offi#e or
emplo"ment during their tenure)
11
The" are also pre#luded from engaging in the pra#ti#e of an"
profession or in the a#ti3e management or #ontrol of $usiness whi#h in an" wa" ma" $e affe#ted
$" the fun#tions of their offi#e* or to $e finan#iall" interested dire#tl" or indire#tl" in an" #ontra#t
with* or in an" fran#hise or pri3ilege granted $" the go3ernment* or an" of its su$4di3isions*
agen#ies* or instrumentalities* in#luding go3ernment4owned or go3ernment4#ontrolled
#orporations or their su$sidiaries)
1(
2ue to its limited $udget* the CHRP depends on grants from pri3ate institutions to
implement its pro7e#ts* parti#ularl" in areas of spe#iali+ed training* ad3o#a#" and information
dissemination* do#umentation te#hnolog"* and s"stems de3elopment)
III. &'ND'T(
1;
Carino 3) Commission on Human Rights* G)R) No /110%* 2e#em$er %//%= 9:port Pro#essing Lone 3)
Commission on Human Rights* G)R) No %!%;(1* %; April %//;= <imon* 6r) 3) Commission on Human
Rights* / <CRA %%( (%//;))
1&
9:e#) Order No %1-* <e#tion )
11
Ibid.
1(
Ibid.
/
/
1. Resear!h and ed)!ation
'u#h of the CHRP5s efforts for the period under re3iew were #entred on human rights
edu#ation and promotion* usuall" in form of training and seminars for the se#tor most sus#epti$le
to #ommitting human rights a$uses R the poli#e for#e. 8hile this strateg" is lauda$le* there is no
relia$le indi#ator to assess its effe#ti3eness) There is no re#ord showing that CHRP has used an"
assessment tool to stud" the impa#t of its edu#ation and training programmes) Its Annual
A##omplishment Report for !!1 and for the .irst <emester of !!( also did not indi#ate whether
monitoring a#ti3ities were #ondu#ted to ensure the effi#a#" of its edu#ation programmes)
*. Investigation and !omplaints handling
8ith the rise in the num$er of re#orded #ases of human rights 3iolations for the period
under re3iew* the CHRP stepped up its pro#edures to $oost the ,ualit" of its legal and
in3estigation work through the issuan#e of new guidelines for #lassif"ing $rea#hes) Howe3er* if
the su##ess rate of prose#ution is taken as the #riterion of effe#ti3eness of its in3estigation
te#hni,ues and pro#edures* then it is safe to #on#lude that the CHRP has $een far from su##essful)
In !!1 for instan#e* the #ourts de#ided (- #ases referred $" the Commission for
prose#ution) Of these* &% were dismissed= % resulted to #on3i#tions* and %! #ases resulted in
a#,uittal of the a##used)
10
.or the first <emester of !!( (6anuar" to 6une)* -0 #ases were de#ided*
of whi#h -% were dismissed* & resulted in #on3i#tions and in a#,uittals)
1/
The low #on3i#tion rate ma" $e attri$uted to se3eral fa#tors* in#luding poor
do#umentation and handling of e3iden#e) The CHRP must therefore look into these fa#tors and
#ondu#t ,ualitati3e anal"sis of the de#ided #ases as part of its monitoring fun#tions)
+. Disregard o# s)bpoenas iss)ed

It is not un#ommon for high pu$li# offi#ials to ignore the su$poena issued $" the
Commission in #onne#tion with an ongoing in3estigation) Howe3er* the Commission has "et to
e:er#ise its power to #ite them for #ontempt* to #ompel their attendan#e) In an inter3iew with a
Commission offi#ial* it was re3ealed that the su$poenaed pu$li# offi#ers usuall" #ir#um3ent the
purpose of the su$poena $" sending representati3es) 'ore often than not* the representati3es
neither ha3e personal knowledge of the #ase* nor the #ompeten#e to testif")
4. Impa!t o# C,R- re!ommendations on h)man rights poli!./ma0ing
There is no relia$le test to assess the impa#t of CHRP re#ommendations in influen#ing
go3ernment poli#" on human rights) Through inter4agen#" meetings and dialogues with national
and lo#al agen#ies* the CHRP has hoped to impro3e #o4ordination* #onsultation and de3elopment
of poli#ies and strategies for the go3ernment5s human rights agenda)
No dou$t* the CHRP5s 3o#al pu$li# #ondemnation of the rising num$er of e:tra47udi#ial
killings and enfor#ed disappearan#es has for#ed the go3ernment to look #losel" into the pro$lem)
Mikewise* its 3isi$ilit" in large pu$li# demonstrations during the period under re3iew has helped
#ool tensions* as well as ser3ed to remind the poli#e of their dut" to o$ser3e ma:imum toleran#e)
De"ond these* howe3er* the fruits of CHRP efforts are "et to $e seen)
10
CHR Annual Report (!!1)* p) ;)
1/
CHR A##omplishment Report (.irst <emester)* p) ;)
%!
%!
In terms of poli#" legislation* Congress usuall" soli#its CHRP re#ommendations on Dills
in3ol3ing human rights) Howe3er* there has $een no resear#h to assess the influen#e of the
re#ommendations in the ena#tment of su#h laws) A num$er of Dills ha3e "et to $e passed $"
Congress despite CHRP endorsement* su#h as the Anti49nfor#ed or In3oluntar" 2isappearan#e
Dill and the Philippine <tatute on Crimes against International Humanitarian Maw and Other
<erious International Crimes)

I1. INTERACTION WITH NGOs
The CHRP5s ro#k" relationship with NGOs is one of its weakest points) There has $een
no periodi# #onsultation with #i3il so#iet" groups* al$eit #onsultati3e meetings are held on #ertain
issues) A re3iew of the CHRP5s A##omplishment Reports for !!1 and the first <emester of !!(
re3eals no sign of #olla$orati3e partnership with NGOs) This is in stark #ontrast to the CHRP5s
ro$ust performan#e in the area of international and regional #o4operation)
1. R(CO&&(ND'TION
1. To the C,R-
i) 9nhan#e in3estigati3e powers
The low #on3i#tion rate of the #ases re#ommended for prose#ution is indi#ati3e of the
CHRP5s ineffe#ti3eness as an in3estigati3e $od")
Apart from undertaking ,uantitati3e reporting* the CHRP should #ondu#t ,ualitati3e
anal"sis of #ourt4de#ided #ases that it has in3estigated and endorsed for prose#ution) This
will guide the CHRP in taking appropriate steps to enhan#e its #han#es of o$taining
#riminal #on3i#tions) In parti#ular* it should look into its ,ualit" of handling and
preser3ing e3iden#e* in#luding testimon"* o$7e#ts and do#uments)

In this #onne#tion* the CHRP must e:ert its powers as an independent #onstitutional
$od") It should use its power to #ite #ontempt whene3er ne#essar" to o$tain all a3aila$le
information on #ases under in3estigation) It should make use of its power to grant
immunit" to witnesses to ensure that alleged human rights 3iolators are $rought to
7usti#e) It must also use its power to soli#it 9:e#uti3e aid* su#h as the use of go3ernment
medi#al and forensi#s e:perts* to fa#ilitate its fun#tions*
ii) <trengthen resear#h and edu#ation fun#tions
As the institution tasked with promoting and prote#ting human rights* the CHRP must $e
at the forefront of dis#ourse) It must not #ontent itself with $eing a passi3e parti#ipant in
the human rights de$ate) It should #hart the #ourse $"F
(a) Condu#ting and pu$lishing in4depth resear#h on trends and de$ates=
($) Inter3ening* either as an interested part" or as amicus curiae* in #ases with human
rights impli#ations lodged $efore the <upreme Court=
(#) Initiating and proposing ne#essar" legislation that will $etter promote and prote#t
human rights= and
%%
%%

(d) 9nlightening the pu$li#* through periodi# $ulletins* on the human rights impli#ations
of politi#al issues like transparen#" of go3ernment dealings and pri3a#" of
#ommuni#ations)
There should also $e a me#hanism to assess the effi#a#" of its training programmes)
iii) 9sta$lish a working relationship with mem$ers of #i3il so#iet"
The CHRP must also esta$lish a working relationship with NGOs and other mem$ers of
the #i3il so#iet") The" are a 3alua$le resour#e* not onl" $e#ause the" are moti3ated $"
passion and idealism* $ut also $e#ause of their long e:perien#e in human rights ad3o#a#")
A working relationship ma" $e esta$lished in #omplaints handling* in3estigation and
monitoring= and sharing of information and resour#es) The CHRP ma" likewise e:plore
a3enues to in3ol3e #i3il so#iet" in the performan#e of its fun#tions) .or instan#e* it ma"
deputi+e a NGO to assist in its 3isits to pla#es of detention)
*. To the Legislat)re
i) <et up a sele#tion $od" to s#reen appointments of Commissioners
9:e#uti3e Order No %1- should $e amended to pro3ide a sele#tion pro#edure for the
appointment of CHRP Commissioners) This ma" $e done through a #reation of a $od"
akin to the 6udi#ial and Dar Coun#il that s#reens nominees for the Den#h) 'em$ers of the
human rights #ommunit" should $e represented* along with the respe#ti3e Chairpersons
of the Committee on 6usti#e and Human Rights of $oth Houses of Congress* and
mem$ers of the a#ademe among others)
ii) Adopt a rotational s#heme of appointment

9:e#uti3e Order No %1- should $e amended to adopt the rotational s#heme of
appointment emplo"ed $" the other #onstitutional $odies) Thus* upon the e:pir" of the
term of offi#e of the #urrent Commissioners* the first two mem$ers of the Commission
ma" $e appointed for ( "ears= another two for & "ears and the rest for - "ears) Thereafter*
the su##eeding Commissioners would $e appointed for a term of ( "ears)
iii) Grant full fis#al autonom" to the CHRP
2espite the re#ent <upreme Court ruling on the limited fis#al autonom" granted to the
CHRP under the %/0( Constitution* there is nothing to pre3ent Congress from granting
full fis#al autonom" through legislation) (N)
+. To the (2e!)tive

i) Appoint onl" those with an e:tensi3e $a#kground on human rights ad3o#a#" as
Commissioners)
ii) O$ser3e the Paris Prin#iples* espe#iall"* the need for di3ersit" in the CHRP)

iii) Gi3e the CHRP unhampered a##ess to fa#ilities and information* to assist its
in3estigati3e fun#tions)
%
%
4. To the 3)di!iar.
i) <oli#it the parti#ipation and e:pert opinion of the CHRP in #ases with human
rights impli#ations)
ii) Apdate 7udges on latest trends* approa#hes and te#hni,ues in resol3ing #ases with
human rights impli#ations)
8riterF
Attorne" ?in#ent Pepito Pam$ao* 6r)
%-
%-