The Supreme Court acquitted Venancio R. Nava, Primo C. Obenza, and Evelyn L. Miranda of charges related to violating Section 3(g) of Republic Act No. 3019, the Anti-Graft and Corrupt Practices Act. The Court found that the prosecution failed to sufficiently prove that the government suffered gross and manifest disadvantage due to overpricing in the procurement of science laboratory tools and devices (SLTDs). This decision underscores the importance of providing concrete evidence of actual overpricing based on a proper canvass of the specific items in question to secure a conviction under the anti-graft law.

Auditing Scrutiny: Did Canvassing Flaws Lead to Wrongful Convictions?

This case arose from the procurement of SLTDs by the Department of Education Culture and Sports (DECS) Region XI. Venancio R. Nava, the Regional Director, along with Primo C. Obenza and Evelyn L. Miranda, were accused of entering into contracts that were grossly and manifestly disadvantageous to the government. The core of the accusation was that the SLTDs purchased from D’Implacable Enterprises, represented by Miranda, were overpriced. The Sandiganbayan initially found them guilty, but the Supreme Court reviewed the case, focusing on the validity of the audit process used to determine the alleged overpricing.

The Supreme Court’s analysis hinged on whether the prosecution had adequately demonstrated that the transactions were, in fact, disadvantageous to the government. To prove a violation of Section 3(g) of R.A. No. 3019, the prosecution needed to establish three elements. First, the accused must be a public officer. Second, they must have entered into a contract or transaction on behalf of the government. Third, the contract or transaction must be grossly and manifestly disadvantageous to the government. The Court acknowledged the presence of the first two elements but focused on the third, specifically the issue of overpricing.

The Sandiganbayan’s finding of guilt was primarily based on a special audit report that claimed the prices of the SLTDs procured from D’Implacable exceeded prevailing market prices by a significant margin. However, the Supreme Court scrutinized the methodology used by the audit team in determining these prevailing prices. The Court noted critical flaws in the audit process. The audit team obtained samples of SLTDs from different divisions within DECS Region XI, not specifically from DECS-Davao Oriental, the subject of the audit. This raised doubts about whether the items canvassed were identical in brand and quality to those supplied by D’Implacable.

The Court emphasized that, according to COA Circular No. 85-55A, excessive expenditure is determined by considering both price and quality. The circular stipulates that a price is considered excessive if it exceeds the allowable price variance (10%) between the item bought and the price of the *same item* per canvass. The Court found that the audit team’s failure to canvass the *same items* bought by DECS-Davao Oriental undermined the claim of overpricing.

As to the price, the circular provides that it is excessive if “it is more than the 10% allowable price variance between the price for the item bought and the price of the same item per canvass of the auditor.”

The absence of a proper canvass sheet further weakened the prosecution’s case. The canvass sheet would have provided evidence that a canvass was actually conducted, listing comparative prices and the availability of the SLTDs from different establishments. The lack of this documentation cast doubt on whether a genuine canvass ever took place. The Supreme Court has consistently held that mere allegations of overpricing are insufficient to justify disallowance of government disbursements without proper documentation and access to source documents.

In reaching its decision, the Supreme Court cited previous cases that underscored the importance of providing concrete evidence of overpricing. For example, in *Caunan v. People*, the Court ruled that evidence of the market price of *walis tingting* (local brooms) of different specifications purchased from a different supplier was insufficient to prove overpricing. The prosecution must present evidence of the actual price of the specific items purchased at the time of the transaction.

Building on this principle, the Court reiterated its stance in *Buscaino v. Commission on Audit* that mere allegations of overpricing are not sufficient without access to actual canvass sheets and price quotations from suppliers. The Court stressed that due process requires that government agencies have access to the COA’s source documents to verify compliance with guidelines on excessive expenditures.

x x x [I]n the absence of the actual canvass sheets and/or price quotations from identified suppliers, a valid basis for outright disallowance of agency disbursements/cost estimates for government projects.

The Supreme Court emphasized that the prosecution failed to establish that the transactions were “grossly and manifestly disadvantageous” to the government. The Court defined “manifest” as evident, open, and obvious. “Gross” means flagrant and inexcusable conduct, while “disadvantageous” means unfavorable or prejudicial. Given the flawed evidence presented by the prosecution, the Court could not conclude that the transactions met this standard.

The Court also addressed the issue of public bidding. While it noted that the transactions took place without public bidding, which was generally required under COA Circular No. 85-55A, the charges against the accused were solely based on overpricing. The Court found it puzzling that the charges did not include the lack of public bidding, but ultimately, the failure to prove overpricing was the determining factor in the acquittal.

Moreover, R.A. No. 9184, the Government Procurement Reform Act, requires that all procurement be done through competitive bidding, with limited exceptions. The Court has consistently ruled that alternative procurement methods may only be used in specific instances provided by law. Competitive public bidding is essential to protect the public interest, ensure fair competition, and prevent favoritism in government contracts.

The Court concluded that the evidence presented did not establish guilt beyond a reasonable doubt. The presumption of innocence is a fundamental constitutional principle, and the prosecution bears the burden of proving guilt. The Court emphasized that conviction must rest on solid evidence showing that the accused, with moral certainty, committed the crime charged. Lacking such evidence, the Court was duty-bound to acquit the petitioners.

FAQs

This case serves as a reminder of the importance of adhering to proper procedures and providing concrete evidence in cases involving alleged violations of anti-graft laws. The Supreme Court’s decision underscores the need for thorough and accurate audits to support claims of overpricing in government contracts. Failure to meet these standards can result in acquittal, regardless of other procedural irregularities.

For inquiries regarding the application of this ruling to specific circumstances, please contact ASG Law through contact or via email at frontdesk@asglawpartners.com.

Disclaimer: This analysis is provided for informational purposes only and does not constitute legal advice. For specific legal guidance tailored to your situation, please consult with a qualified attorney.
Source: EVELYN L. MIRANDA vs. SANDIGANBAYAN, G.R. Nos. 144760-61, August 02, 2017