Department of Foreign Affairs v. NLRC

Tirol
Topic: Employers with immunity from suit

9. Department of Foreign Affairs v. NLRC
DEPARTMENT OF FOREIGN AFFAIRS vs. NATIONAL LABOR RELATIONS COMMISSION,
HON. LABOR ARBITER NIEVES V. DE CASTRO and JOSE C. MAGNAYI
Doctrine: The Charter and the Headquarters Agreement granting these immunities and
privileges are treaty covenants and commitments voluntarily assumed by the Philippines
government which must be respected.
Action Sequence: Labor Arbiter -> NLRC -> SC via petition for certiorari
Facts: On 27 January 1993, private respondent initiated a case for his alleged illegal dismissal
by ADB and the latter's violation of the "labor-only" contracting law. 2 summonses were served,
one sent directly to the ADB and the other through the DFA, both with a copy of the complaint.
ADB and the DFA notified respondent LA that the ADB, as well as its President and Office, were
covered by an immunity from legal process except for borrowings, guaranties or the sale of
securities pursuant to Article 50(1) and Article 55 of the Agreement Establishing the Asian
Development Bank ("Charter") in relation to Section 5 and Section 44 of the Agreement
Between The Bank And The Government Of The Philippines Regarding The Bank's
Headquarters ("Headquarters Agreement").
LA: took cognizance of the complaint on the impression that the ADB had waived its diplomatic
immunity from suit. It ruled that the complainant was a regular employee of respondent ADB,
and the termination of his services was illegal.
The ADB did not appeal. Instead, the DFA referred the matter to the NLRC, seeking
investigation of the LA.
NLRC Chairman replied, stating that if the DFA feels that the action of LA Nieves de Castro
constitutes misconduct, malfeasance or misfeasance, it is suggested that an appropriate
complaint be lodged with the Office of the Ombudsman.
Dissatisfied, the DFA lodged the instant petition for certiorari. The OSG, in its comment, initially
assailed the claim of immunity by the ADB. Subsequently, however, it submitted a Manifestation
stating that it became convinced that ADB, indeed, was correct in invoking its immunity from suit
under the Charter and the Headquarters Agreement.
Issue 1: Whether ADB is correct in invoking its immunity from suit under the Charter and the
Headquarters Agreement.
Ruling 1: YES.
Article 50(1) of the Charter provides:
The Bank shall enjoy immunity from every form of legal process, except in cases arising
out of or in connection with the exercise of its powers to borrow money, to guarantee
obligations, or to buy and sell or underwrite the sale of securities.
Under Article 55 thereof —
All Governors, Directors, alternates, officers and employees of the Bank, including
experts performing missions for the Bank:
(1) shall be immune from legal process with respect of acts performed by them in their
official capacity, except when the Bank waives the immunity.
Like provisions are found in the Headquarters Agreement. Thus, its Section 5 reads:
The Bank shall enjoy immunity from every form of legal process, except in cases arising
out of, or in connection with, the exercise of its powers to borrow money, to guarantee
obligations, or to buy and sell or underwrite the sale of securities.
And, with respect to certain officials of the bank, Section 44 of the agreement states:
Governors, other representatives of Members, Directors, the president, Vice-President
and executive officers as may be agreed upon between the Government and the Bank
shall enjoy, during their stay in the Republic of the Philippines in connection with their
official duties with the Bank:
xxx
(b) Immunity from legal process of every kind in respect of words spoken or written and
all acts done by them in their official capacity.
The above stipulations of both the Charter and Headquarters Agreement should be able, may
well enough, to establish that, except in the specified cases of borrowing and guarantee
operations, as well as the purchase, sale and underwriting of securities, the ADB enjoys
immunity from legal process of every form. The Bank's officers, on their part, enjoy immunity in
respect of all acts performed by them in their official capacity. The Charter and the
Headquarters Agreement granting these immunities and privileges are treaty covenants and
commitments voluntarily assumed by the Philippines government which must be respected.
In World Health Organization vs. Aquino, the Supreme Court declared:
It is a recognized principle of international law and under our system of separation of
powers that diplomatic immunity is essentially a political question and courts should
refuse to look beyond a determination by the executive branch of the government, and
where the plea of diplomatic immunity is recognized and affirmed by the executive
branch of the government, xxx it is then the duty of the courts to accept the claim of
immunity upon appropriate suggestion by the principal law officer of the government.
In the instant case, the filing of the petition by the DFA, in behalf of ADB, is itself an affirmance
of the government's own recognition of ADB's immunity. Contrary to private respondent's
assertion, the claim of immunity is not here being raised for the first time, it has been invoked
before the forum of origin through communications sent by petitioner and the ADB to the LA, as
well as before the NLRC following the rendition of the questioned judgment by the LA, but
evidently to no avail.
Issue 2: Whether the DFA has the legal standing to file the present petition
Ruling 2: YES.
The DFA's function includes, among its other mandates, the determination of persons and
institutions covered by diplomatic immunities, a determination which, when challenge, entitles it
to seek relief from the court so as not to seriously impair the conduct of the country's foreign
relations. The DFA must be allowed to plead its case whenever necessary or advisable to
enable it to help keep the credibility of the Philippine government before the international
community. When international agreements are concluded, the parties thereto are deemed to
have likewise accepted the responsibility of seeing to it that their agreements are duly regarded.
In our country, this task falls principally of the DFA as being the highest executive department
with the competence and authority to so act in this aspect of the international arena.
In Public International Law, when a state or international agency wishes to plead sovereign or
diplomatic immunity in a foreign court, it requests the Foreign Office of the state where it is sued
to convey to the court that said defendant is entitled to immunity. (Holy See vs. Hon. Rosario,
Jr.)
Dispositive: Petition GRANTED.

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Department of Foreign Affairs v. NLRC

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Tirol

Topic: Employers with immunity from suit

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